Report of the Ad Hoc Committee on Environmental Affairs and Tourism on Budget Vote 28 – Environmental Affairs and Tourism and Strategic Plan, dated 17 June 2004:

Report of the Ad Hoc Committee on Environmental Affairs and Tourism on Budget Vote 28 – Environmental Affairs and Tourism and Strategic Plan, dated 17 June 2004:

The Ad hoc Committee on Environmental Affairs and Tourism, having considered Budget Vote 28 – Environmental Affairs and Tourism, reports as follows:

INTRODUCTION
A meeting of Parliament’s Portfolio Committee on Environmental Affairs and Tourism was held on 1 June 2004. After introductory remarks by the Minister of Environmental Affairs and Tourism, an overview of the Department of Environmental Affairs and Tourism’s (DEAT) Strategic Plan for 1 April 2004 – 31 March 2007 was delivered by the Director-General (DG) of the DEAT. Briefings
on the following programmes were dealt with on that day, as well as on 2 and 7 June: Programme 1 (Administration); Programme 2 (Environmental Quality and Protection); Programme 3 (Marine and Coastal Management); Programme 4 (Tourism), Programme 5 (Biodiversity and Conservation), and Poverty Relief. This report will give a brief synopsis of some of the main points in each presentation, followed by a summary of the main points of the discussions.

INTRODUCTORY REMARKS BY THE MINISTER: DEAT
Main Points
The Minister assured the Committee of his recognition of the importance of its role in ensuring accountability and transparency in the work of the Department. He stated that the basic aim of the DEAT Strategic Plan was to give effect to Government policy in the fields of environment and tourism.

Discussion
Inter-governmental co-operation
The DEAT wants to include and integrate local and provincial officials into its strategies because the Department is also concerned about making local and provincial government full partners in the five strategic areas under its mandate. However, the DEAT suffers from staff constraints, particularly with regard to a countrywide system of local representatives. Another factor to consider with regard to the issue of intergovernmental co-operation, is the fact that the
Constitution sets out the responsibilities of the three tiers of government. Nonetheless, there is a system of intergovernmental co-operation in place and it is working.

OVERVIEW: BUDGET
Budget Allocation per Programme 2004/2005 R thousand
1. Administration 105 655
2. Environmental Quality and Protection 171 822
3. Marine and Coastal Management 271 961
4. Tourism 375 621
5. Biodiversity and Conservation 276 816
6. Auxillary and Associated Services 421 532
TOTAL 1 623 407

OVERVIEW: STRATEGIC PLAN
The Vision of the DEAT is, "A prosperous and equitable society living in harmony with our natural resources". The Mission of the DEAT is "To lead sustainable development of our environment and tourism for a better life for all".

The overview of the Strategic Plan delivered by the DG dealt with all the various programmes run by the DEAT, which were also dealt with individually by the Deputy Directors-General, as described later.

Main Challenges and Achievements
_ 4.2% growth in overseas arrivals for 2003
_ A multi-point plan led to 40% reduction in S02 load in Durban Industrial Basin.
_ Successful hosting of the World Parks Congress.
_ In the fishing industry, 2 200 rights were allocated; 77% went to small, medium and micro enterprises (SMMEs) and 60% on the basis of black economic empowerment (BEE).

A number of projects outlined in the various DEAT programmes addressed Government’s socio-economic and development priorities (viz. job creation, skills development, poverty alleviation, transformation, service and infrastructural delivery).

Discussion
The regulation of GMOs (genetically-modified organisms) – should this not be the responsibility of DEAT?
Currently, the regulating authority is the Department of Agriculture, in terms of the GMO Act. However, a clause in the Biodiversity Act will, in the future enable the Minister, on the basis of concern, to require a full environmental impact assessment for a specific GMO.

The Cartagena Protocol on Biosafety – are we not in violation of this?
The DEAT engages regularly on this ensure to ensure that the Protocol is properly implemented – we co-operate with the Department of Agriculture on this. The Wild Coast – what is the DEAT vision?

There are competing interests for this region (e.g. mining), but eco-tourism is what drives our vision for this area, as this will generate more jobs. The best course is to use the natural wealth of the area in a sustainable manner. Our actions demonstrate this, e.g. over illegal cottages; poverty alleviation projects and protecting the biodiversity of Pondoland. DEAT is also in favour of opening up an infrastructure corridor in this area, hinging around the National Road. The toll road is designed to fit into a broader development framework and the critical issue of access. We cannot fritter away resources on low-level tourism projects, but need to rather look at macro-level development issues.
The hotel grading system – is this in line with international marketing needs?
Grading is a voluntary process. However, we need to push for more establishments to be graded through a reward process. Currently grading figures are low: 35% across the various sectors, but our target is 70%. Compliance and enforcement – these are often lacking

These are new elements of our Strategic Plan, as they have only been set up last year. Staffing numbers are still low as we are still recruiting.

Licensing of landfills and waste management issues
The Department of Water Affairs and Forestry (DWAF) is in charge of permitting. Statistics are not currently available, but there is an enormous backlog. An audit of legal and illegal landfills is required. Waste management does have a capacity for job generation, but we need to move away from waste picking on landfills to sorting offsite in a manner that observes health and safety regulations.

Jobs in Poverty Relief Projects
Wage rates in these projects are pegged to local rates and are between R35 per day to R60 pd. The minimum period for work is six months, rising to a maximum of two years.

The depth and quality of transformation in the allocation of fishing rights
We have issued a questionnaire to establish the degree of transformation re: ownership and senior management. This will assist in setting benchmarks for the future.

Environmental education efforts
We have been doing a lot of work in the field of Life Science at school level. Also, South African National Parks (SANParks) and the National Botanic Institute (NBI) have well-established environmental education programmes.

The funding of Environmental Courts and the fate of forfeited assets
Costs are shared between DEAT and the Department of Justice. We need to ensure that all officials have the necessary experience and expertise in environmental law. The track record of these courts: 70% are brought to court
within a year, as against an average of five years.

PROGRAMME 1
Main Challenges and Achievements
_ A book on the World Summit on Sustainable Development has been completed.
_ The NEPAD (New Partnership for Africa’s Development) Environment Programme was adopted by the African Union.
_ A learnership and internship programme was implemented, with 52 current interns and 10 student bursaries awarded.
_ A skills development plan has been reviewed and implemented.
_ An Employment Equity plan was implemented.
_ Procurement in the DEAT is on a basis of 42% BEE.

Discussion
Information on the Bursary Programme
This programme began last year. Marine and Coastal Management however, has been running its own programme at universities. The approach is to identify skills shortages and then to advertise for a response. Thus far, however, the response
has been poor – we need to be more proactive. Currently we have four students studying Marine and Coastal Management, two studying Pollution Control and three in Tourism.

Turnover figures
There has been an improvement in this regard: in 2003, staff turnover was 10% - not as bad as in previous years. However, we need to stabilise these figures further. One of the problems is the ‘poaching’ of experienced staff for promotion posts in other provinces. Clear career pathing strategies need to be put in place.

Employment Equity
The DEAT work profile as at 28 May 2004, is as follows:
Blacks – 65,3%
Africans - 39,1%
Coloureds - 23,6%
Whites - 34,7%
Women - 39,9%

There is a vacancy rate of 27%. We have commissioned an institutional review of staffing levels, the skills base, the staffing shortages etc., which should be completed by the end of June 2004.

PROGRAMME 2: ENVIRONMENTAL QUALITY AND PROTECTION
Main Challenges and Achievements
_ Promulgation of new Environmental Impact Assessment (EIA) regulations.
_ A plan for the transfer of landfill permitting from the Department of Water Affairs and Forestry (DWAF) to DEAT is in place.
_ A fully staffed and resourced enforcement capacity is in place.
_ A Compliance Monitoring System is in place.
_ Regulations to phase out the use of asbestos have been promulgated.
_ The Thor clean-up is under way.
_ A Section 21 company, Buyisa E Bag Co has been established.
_ A five-year action plan for the eradication of stockpiles of Persistent Organic Pollutants has been developed.
_ The Climate Change Response Strategy has been finalised.
_ Implementation Strategies for the Rotterdam and Stockholm Conventions have been finalised.
Discussion
What is the situation re: the use of asbestos during the phasing out process?
Although South Africa (SA) no longer mines asbestos there is little new usage of asbestos, difficulties are now arising because Zimbabwe has a thriving asbestos industry and they transport it to Durban via rail and road. In addition many
Zimbabwe-based industries are starting to set up businesses in SA. This is a complex problem that will have to be negotiated via Foreign Affairs. Another problem relates to the expense of certain asbestos substitutes, which makes it
difficult for asbestos use in those instances to be phased out rapidly. In addition, there is a problem of secondary pollution from mine dumps, roads paved with asbestos, old township houses and rural schools with asbestos ceilings etc.

There is a plan for the remediation process, but DEAT’s role is to regulate this, not carry it out. Other departments (such as Public Works) need to be brought into the ‘mopping up’ process.

Plastic bag regulations
The aim has been to reduce the use of, and the importation of cheap plastic bags and to encourage the use of thicker bags. The Treasury will be imposing a change of 2c per bag that will hopefully discourage the importation of thinner bags. Jobs are being created around the production of biodegradeable bags. A Section 21 company, Buyisa E Bag Co will undertake environmental awareness campaigns aimed at re-use, recycling and the minimisation of waste.

EIAs: conflict of interest, planning legislation
Consultants have to sign a declaration that they will be independent. Unfortunately there is, as yet, no professional association of EIA consultants. Nonetheless, consultants are obliged to address all the relevant issues of an EIA,
otherwise the Government will reject it. EIA regulations should dovetail with planning legislation at provincial and the local levels, as this will speed up the process.

Waste management/Landfills
The removal of waste is a local government, not DEAT function. Nonetheless, we need to ensure that this is effectively carried out. However, one of the problems facing delivery of waste services in historically disadvantaged areas and informal
settlements, is the backlog in services. People in these areas should not live in proximity to landfills (closer than 500m), but this still happens. Local governments could discourage this by creating sorting stations where waste may be picked
under strict health and safety conditions. Many of the waste management problems currently being experienced (e.g. hazardous waste in the domestic stream) will be addressed in the Waste Bill, and in 2005, when the DEAT has
responsibility for landfills.

The use of consultants
Realistically, there is a level of specialist scientific expertise that can never be retained by DEAT. Nonetheless, such expertise should be built and retained within the department.

PROGRAMME 3: MARINE AND COASTAL MANAGEMENT
Major Achievements
_ Four new Marine Protected Areas (MPAs) were declared.
_ Completion of a four-year commercial fishery rights process.
_ A second Environmental Court was opened in Port Elizabeth.
_ An additional 850 subsistence fishing rights awarded to communities in KwaZulu-Natal and the Eastern Cape.

Discussion
Jurisdictional conflicts
The issue of control, or rather, lack of it, with regard to environmental management when the three tiers of government are involved. This may be seen in the issue of poor coastal management at Langebaan, which resulted in beach erosion, and the issue of estuary management. These sorts of issues will directly be addressed by the Coastal Management Bill.

Confiscation of assets
With regard to confiscated marine resources such as abalone, it is difficult to simply place it back on the market as it invariably finds its way back onto the illegal market. However, we have recently introduced a new, strictly regulated
policy that enables restaurants to purchase confiscated abalone subject to certain criteria. With regard to the confiscation of poaching equipment and vessels, the much quicker court processes of the new Environmental Courts have ensured that institutions such as Rhodes University have benefited from forfeited assets.

Bringing illegals into the system
It is true that DEAT cannot just concentrate on the punitive aspects of marine management, since community partnerships in environmental conservation can only be achieved through and engagement with, and integration of, disaffected communities. We also need to consider issues such as whether people who transgressed in the past should be permanently excluded from the system, or not. However, in considering these legitimate issues, we also need to acknowledge that the resource is finite and the permit base cannot be expanded beyond a certain point.

Foreign poaching
The legal catch at Marion Island has gone down drastically over the past three years. Our aim is to rebuild the toothfish catch by using a new offshore vessel, the Sarah Baartman in regular patrols of Marion, as well as French and Australian islands. The ultimate objective is for the three countries to act in partnership, regularly carrying out inspections at these islands and sharing
information.

Transformation
We have achieved a level of transformation in the 2001 rights allocation unsurpassed anywhere in SA. The fishing industry is now more accessible to historically disadvantaged individuals (HDIs): at least 60% of rights-holding companies are HDI-owned or managed. We aim to do even better in the next round.

Sustainable livelihoods
Transformation includes the issue of broadening access to the resource at the subsistence and small-scale levels – i.e. sustainable livelihoods. In this regard, 25 new fisheries have been created, mainly low in economic value, which will result in hundreds rather than thousands of jobs. These fisheries will nonetheless play an important economic role in the communities in which they are located. At a general level, however, it needs to be acknowledged that marine resources are finite, and that while we are committed to ensuring that more stakeholders have access to the resource, and to carving up the ‘cake’ more fairly, there is a point at which we cannot go beyond and still maintain sustainability of the fishing industry.

The issue of sustainable livelihoods also extends to the encouragement of mariculture and aquaculture. Two suitable areas for mariculture projects are Hawston (Western Cape) and Port Elizabeth (Eastern Cape). We also need to look at low-value aquaculture species such as tilapia for inland projects.

Abalone
The new system, viz. of ‘turfs’ in a specific area being allocated to a group of divers is proving difficult to administer, but has a chance of ultimately succeeding. At this stage, 60% of divers in the Hermanus area are HDIs – however, this is not the case in the Eastern Cape. We are moving slowly towards a better regime that will result in co-management of the resource between divers and local communities.

With regard to the issue of local versus international sales of abalone, there are no rulings on where this resource can be sold. The current trend is that abalone is mainly exported.

Poor level of service to fishing communities
This is an ongoing problem and is an area in which improvements still need to be made, despite having made a number of changes to the system a year ago.

The Coastal Management Bill
The audit of coastal land - consultants are currently busy with compiling information around ownership, building below the high water mark, and private developments that prevent public access. This information is vital for the Coastal Management Bill that needs this kind of information since each area will need a plan, mapping etc.

The Bill will also look at problems relating to sewage pipe outlines, which are currently dealt with by DWAF.

Marine Protected Areas
The issue of the inalienability of these areas cannot be answered at this stage. With regard to the issue of compliance and enforcement, we aim to have the whole management regime of MPAs in place by December 2004.

PROGRAMME 4: TOURISM
Major Achievements
_ 1 700 SMMEs were assisted and 10 000 jobs were created.
_ 1 057 tourism establishments were graded.
_ An Approved Destination Status agreement with China was signed.
_ A document on the rollout of tourism in NEPAD was developed.

Discussion
How can we increase tourism outside the mainstream?
The tourism industry needs to actively market township B&Bs (bed and breakfasts); address crime and safety issues, as well as perceptions around these; promote SMMEs which produce traditional crafts; and locate more functions and meetings in historically disadvantaged areas. Geographically, the same approach could be followed, holding meetings in smaller areas such as George, for example. We should also increase tourism to less visited provinces – in this regard, DEAT has targeted three of the six less visited provinces, just as a start.

Problems facing black tour guides
Black South Africans aiming to become tour guides face a number of obstacles, such as training time and costs. Sometimes trained black tour guides find it difficult to find jobs because their services are not being utilised by domestic or foreign tourists. In certain instances they have moved to another sector – for example, some of the guides sent to Germany for training have not remained within the sector.

Regional tourism
The SADC (Southern African Development Community) Tourism Protocol is in effect, but is not working well. The Department of Home Affairs is working on sorting out problems such as visas, so that regional tourists can move across regions easily. Another problem is that SAA (South African Airways) is perceived as being too strong in the regions – SA therefore needs to proceed with sensitivity lest we be perceived as riding roughshod over regional interests. The NEPAD Tourism Action Plan could also assist in removing blockages in this regard. The development of regional tourism would be to South Africa’s benefit.

PROGRAMME 5: BIODIVERSITY AND CONSERVATION
Main Achievements
_ The National Environmental Management: Protected Areas Act (No.57 of 2003) has been passed.
_ A draft National Biodiversity Strategy has been developed.
_ The Ais/Ais-Richtersveld Transfrontier Conservation Park Treaty has been signed.
_ Mapungubwe has been inscribed as a Cultural World Heritage Site;
_ 121 000 has have been added to the Protected Areas system.

Discussion
Concessions in national parks – do these not cause problems re: public access?
Concessionaires have indeed been given exclusive rights in certain areas of national parks - these have sometimes given rise to problems with regard to following wildlife to waterpoints in concession areas. However, these sites were carefully identified beforehand, when it was also ensured that there was enough land to set aside for concessions.

Environmental awareness campaigns for national parks
SANParks has ‘People and Conservation’ programmes for each park that target neighbouring communities. We also target children in urban areas, as does the NBI.

The National Action Plan (NAP) for combating desertification
This is taking a long time to get off the ground. It is our responsibility to do this in terms of the Convention, and we have indeed made some strides in this regard in the past Year. However the NAP still needs Cabinet approval and co-ordination with other departments (Agriculture, Land Affairs). In addition, there are funding implications.

South Africa’s current position re: trading in ivory
In 2002 South Africa requested permission from CITES to trade in ivory. This was granted, subject to certain conditions – for example, a positive report re: the monitoring of poaching in the wake of the decision. SA is ready – all the stock has been marked, However, the Standing Committee has still not given us the go-ahead.

Protected Areas
SA has undertaken to protect 10% of the country’s surface. Currently we are at 5,6%. We are working towards 8% by 2010.

Should we not also be aligning with local authorities in protecting biodiversity?
It has to be acknowledged that the political system of local, provincial and national competencies has been set, and that local landuse patterns have to be checked for their impact on protected areas. All three elements of the political system are autonomous, so co-ordination and implementation, as well as alignment with provincial ordinances can sometimes be problematic. The key here is agreement by negotiation.

POVERTY RELIEF
Achievements
_ The DEAT’s Poverty Relief Programme is named Faranani, a Tshivenda word for ‘working together’.
_ An amount of R667 million was spent on 398 community projects (78% of these in rural areas.
_ To date, 34 632 temporary job opportunities have been created: 45% women, 22% youth and 2% disabled.
_ In the National Treasury Review of 2003, DEAT’s programme was highlighted as an example of good practice

Discussion
How is the programme carried out?
The Department of Public Works plays a role at national level, co-ordinating the Expanded Public Works Programme. With regard to our specific programme, suitable projects are identified through a variety of mechanisms: imbizos, website applications, from officials who liaise with poor communities. The main process we are following however, is to work with municipalities who pass their recommendations for projects on to us. We then check whether the proposals fall within our five targeted sectors. This is a more effective process than liaising directly with communities. With regard to recruitment, we do not have anything to do with this, but simply set guidelines (e.g. targets with regard to the employment of women etc).

How successful is the poverty relief programme?
The United Nations Development Programme (UNDP) has evaluated our programme and found that it is generally successful in assisting the poorest of the poor. Notwithstanding, a number of recommendations were made with regard to improvements in training; relations with provincial and local governments; and the development of norms and indicators to be used as a basis for evaluation. How sustainable is the poverty relief programme?

The DEAT feels that the programme puts food on the table for the families of the employed, and that even temporary jobs have positive effects that reach throughout the communities of those employed. Nonetheless, we acknowledge that it is short-term employment (six months to two years) that does not address the need for permanent jobs. The UNDP report has recommended that a balance be maintained between the creation of short-term jobs and long term investment that creates wealth and long-term employment. This is going to be a challenge for the department, as some projects lend themselves more easily to the creation of long-term employment (such as building and running a game lodge) than others (e.g. coastal clean-ups).

How effective are the skilling and training aspects of the programme?
Training and skilling are important as they enhance the job prospects of employees when their contracts have come to an end. It may also help people to create their own jobs. However, we acknowledge that training on its own cannot create work – for this, the economy needs to grow Nonetheless, training is a contribution to long-term job sustainability. In this regard, we need to track employees who have gained experience in one sector to see how their skills can be utilised in another sector.

CONCLUSION
During the discussion phase after the presentations, the Chairperson, as well as several members of the Committee offered their congratulations to the Department of Environmental Affairs and Tourism senior officials present, both for their excellent presentations, as well as for the quality and depth of the work carried out in the various programmes.1 Notwithstanding, several specific issues of concern were raised during the discussions.2 The main areas of concern may be summarised as follows:

1 See copies of the various presentations for full details.
2 See discussions above for details.
_ Poverty Relief – the sustainability of the job creation aspect of the programme, and the labour absorption capacity of the skilling and training aspects of the programme;
_ Past environmental injustices – the difficulties faced in eradicating the legacy of the past, particularly with regard to poor service delivery and inadequate, even hazardous, living environments;
_ Sustainable livelihoods;
_ Policy implementation – uneven implementation of policy and legislation despite excellent laws;
_ Staffing issues – employment equity, vacancies, the use of consultants, the lack of career pathing; interdepartmental and interprovincial ‘poaching’ of staff.

The senior DEAT officials present gave specific answers to the concerns raised by the Committee.3 In general, their responses may broadly be summarised as follows:

_ The DEAT will strive to meet the socio-economic priorities set by Government through its Poverty Relief Programme and through the creation of the conditions required for sustainable growth and development;
_ The DEAT will strive to eradicate the legacy of past environmental injustices and service backlogs through the formulation and the implementation of policies and legislation; as well as through co-operation with local and provincial governments, and other departments;
_ The DEAT will attempt to ensure, through the formulation of policies and the delivery of services, more equitable access to the sustainable use and harvesting of natural resources;
_ The DEAT will create an appropriate regulatory environment;
_ The DEAT will attempt to ensure, through its monitoring, enforcement and compliance mechanisms, that its guidelines and regulations are obeyed;
_ The DEAT will attempt to ensure, through its recruitment and employment equity policies, that it complies with Government policies on staffing, equity and the use of consultants.

3 See discussions above for details.

SOURCES
Van Schalkwyk, M. 2004: Introductory Remarks to the Portfolio Committee on Environmental Affairs and Tourism, 1 June
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘DEAT Strategic Plan, 2004 - 2007’, 1 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Budget Overview: 2004/05’, 2 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Programme 1: Administration’, 2 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Programme 5: Biodiversity and Conservation’, 2 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Programme 2: Environmental Quality and Protection’, 2 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Programme 4: Tourism’, 2 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Programme 3: Marine and Coastal Management’, 7 June.
Department of Environmental Affairs and Tourism. 2004: Presentation to the Portfolio Committee on Environmental Affairs and Tourism on ‘Poverty Alleviation Interventions’, 7 June.