Advancing small-scale fisheries in South Africa: Pathways to sustainability and equity within the Blue Economy framework

Occasional Paper 8/2025

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J U L Y 2 0 2 5

Dr Samantha Williams

PhD (Environmental and Geographical Science), University of Cape Town, 2013

Abstract

Small-scale fishing (SSF) in South Africa has long been a cornerstone of coastal livelihoods, identities and cultures. Despite its historical and socio-economic significance, SSF continues to face persistent challenges related to resource access, governance and socio-economic vulnerability. This paper provides an overview of the status of SSF in South Africa within the broader framework of the Blue Economy, emphasising sustainable ocean-based livelihoods and equitable resource use by drawing on a review of relevant academic and policy literature. It describes the evolution of policy reforms aimed at improving SSF governance and identifies gaps between policy intent and local realities, crucial for South Africa’s new blue/oceans economy agenda ambitions.

The paper examines how socio-economic and ecological challenges affect SSF, with particular attention given to the structural inequalities that continue to marginalise small-scale fishers despite national and international frameworks promoting inclusive ocean governance.

In conclusion, this research proposes pathways for advancing SSF within the Blue Economy paradigm, focusing on sustainable governance and equitable resource distribution. This approach highlights the importance of enhancing SSF's livelihoods through capacity building, long-term policy support and the adoption of equitable and just principles within governance structures and processes. These conditions are essential for fostering a sustainable and inclusive ocean economy in South Africa, ensuring that small-scale fisheries contribute to shaping an equitable ocean future.

Introduction

On a global scale, small-scale fisheries (SSF) are recognised as fundamental to food security, nutrition, livelihoods and cultural identity, particularly in developing regions (Cheungpagdee & Jentoft, 2019). A recent study, quantifying the value and contribution of small-scale fisheries (SSF), indicates that globally, the livelihood of 1 in every 12 people, nearly half of them women, depends on SSF for their livelihoods (Basurto et al., 2025). These figures underscore the sector’s significance as a source of food and income, for instance, and especially for vulnerable populations in coastal and inland communities.

Various studies have highlighted the contribution of SSF in combating hunger and malnutrition with catch from small-scale fisheries supporting human nutrition in two key ways: first, through the direct consumption of seafood and second, through income earned from fisheries that are used to purchase nutritious food (Viana et al., 2023; Smith & Basurto, 2019). When seafood is sold within communities or at local markets, it is often more affordable than other animal protein sources, such as beef or chicken, making it a vital and affordable source of nutrients for communities with limited access to broader food markets.   This, for example, in Africa, supports the food security of over 200 million people (March & Failler, 2022).  In Asia, similar contributions are noted where small-scale fisheries support the livelihoods of around 46 million people. Women make up 40 per cent of those engaged in the sector, which accounts for nearly half of the region's total fish catch, with an estimated landed value of USD 53.3 billion (FAO, 2025).

Beyond their nutritional and economic value, SSFs are deeply embedded in the cultural fabric of many societies. Fishing is not merely an occupation but a way of life that shapes community identities and social relations (Delgado-Ramírez et al., 2022; Fabinyi & Barkley, 2022). In South Africa, as in many coastal regions worldwide, SSFs support diverse livelihood strategies and are integral to the social and cultural identity of many coastal communities (Solomon, 2023; Williams, 2023).

While small-scale fishing livelihoods are characterised by their diversity, flexibility and dynamism (Fabinyi & Barkley, 2022), it is accepted that there is no universal definition of what constitutes small-scale fisheries. Various definitions consistently highlight that small-scale fisheries vary widely across regions, cultures, and policy contexts, reflecting differences in gear types, vessel sizes, target species, socio-economic role and the organisation of labour (Smith & Basurto, 2019). The Food and Agriculture Organisation of the United Nations (FAO) Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries[1] explicitly recognise this diversity and the absence of a single definition, instead describes SSF as encompassing a wide range of activities along the value chain, undertaken by men and women in both inland and marine environments (FAO, 2015).  Many studies note that national and scientific definitions often emphasise technological dimensions, such as boat length or engine power. Therefore, small-scale fisheries are best understood as a heterogeneous and context-dependent sector embedded in complex socio-ecological systems and shaped by local realities (Smith & Basurto, 2019).  This connection to place and tradition is a defining feature of SSF, distinguishing it from large-scale industrial fisheries.

Despite the significant contribution that SSF makes to the livelihoods of millions, many SSF-dependent communities still face significant socio-economic challenges and remain vulnerable to poverty, resource access constraints, limited participation in governance, insecure tenure rights, and exposure to environmental and market shocks (Cheungpagdee & Jentoft, 2019; Sowman et al., 2014). Climate change poses risks to SSF through the altered distribution of harvested resources, habitat degradation and increased frequency of extreme weather events (Villasante et al., 2022; Galappaththi et al., 2021). These impacts threaten both the ecological sustainability of these fisheries systems and the socio-economic well-being of SSF communities.  Their vulnerability is further exacerbated by their historical marginalisation in policy and governance frameworks (Cheungpagdee & Jentoft, 2019).

Various national and international policy instruments have aimed to address the challenges faced in small-scale fisheries. The FAO's Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries, along with the inclusion of SSF in the Sustainable Development Goals (SDGs), underscore the importance of equitable access to resources, social protection, and capacity building. In particular, the FAO’s SSF Guidelines were developed to support the visibility, recognition and enhancement of the role of SSF and to contribute to global and national efforts to eradicate hunger and poverty (FAO, 2015). It, therefore, provides guidance that States and stakeholders can consider for the development and implementation of participatory policies, strategies and legal frameworks to enhance responsible and sustainable SSFs.

In this regard, when considering the role and integration of SSFs into the blue economy and ocean governance frameworks, it is essential to ensure that SSFs are not overlooked in the pursuit of economic growth. The Blue Economy has rapidly become a key feature in ocean governance discourse and is hailed as a strategic approach that presents both opportunities and challenges for Small-Scale Fisheries (SSF) (Yousef, 2024). Fisheries form one part of the Blue Economy agenda, which encompasses a broad spectrum of ocean-based economic activities. These include aquaculture, maritime transport, coastal tourism, renewable energy, marine biotechnology and ecosystem services. Within this framework, fisheries, when managed sustainably and equitably, can contribute to economic growth, improved livelihoods and the sustainable use of marine resources.

The following section provides an overview of small-scale fisheries in South Africa, examining their socio-economic significance as a foundation for community livelihoods, identities and cultures. It is also essential to discuss the persistent challenges related to resource access and governance, as the sector has historically been marginalised. Acknowledging these issues is crucial to ensure that small-scale fisheries are not overlooked and that their contributions and livelihoods are fully recognised and supported in Blue Economy frameworks and plans.  It is critically important to explore the role of SSF within the oceans economy framework and how it can enhance and strengthen the sector. 

The role and relevance of SSFs in South Africa

Given South Africa’s colonial and later apartheid history, it is not surprising that natural resource use, distribution and access rights are contested issues that the country still grapples with. As in the case of land, so too does the fisheries sector bear examples of this complex nature.  Historically, the small-scale fisheries sector has been neglected in fisheries discourses, policies and management (Auld & Feris, 2022; Sowman, 2011; Hara & Raakjaer, 2009). This is the case as the country's marine resources and activities were dominated by a few large-scale, white-owned enterprises during the country's apartheid era. Access to resources for most of the country’s population and coastal fisher communities was predominantly gained through employment in the commercial fishing sector or by obtaining access through recreational or resource-use permits (Sowman & Cardoso, 2010; van Sittert, 2003).

Despite these restrictions, however, many individuals and communities have been engaged in subsistence and small-scale fishing activities for decades (van Sittert, 2003; Clark et al., 2002). These activities, although labour-intensive, do not require significant financial investments or extensive operations. Typically, small-scale fishers harvest fisheries resources for household consumption and limited sale to local markets (Fabinyi & Barclay, 2022). With South Africa's democratisation and the development of new legislation, small-scale fishers were recognised as part of a formal sector for the first time. Recognition of these individuals and communities was the first step in a long process of transformation that is continuing.

While recognition of this sector was a positive step forward, little information was available about fishers and how they are organised, what and where they harvested, the nature of their communities and their livelihoods. In broad terms, this recognition confirmed that there was a significant level of poverty in fishing communities and that transformation in the industry was urgently required (Sunde & Isaacs, 2008). More specifically, it highlighted the need to accommodate small scale fishers in new policy developments. In September 1993, a 'Fishing Forum' was established, comprising various stakeholders such as the trade unions, large companies, various government departments, all tasked with managing fisheries resources. It was agreed that immediate steps were needed to address the poverty crisis in coastal fishing communities, and the new government promised "the upliftment of impoverished coastal communities through improved access to marine resources" (ANC 1994, p. 104).

The post-apartheid period was, therefore, marked by a series of commissions, interim resource rights allocation measures and processes, policy development, protests and legal actions that all collectively shaped the trajectory of the small-scale fisheries sector (Williams, 2023; Sowman, 2011). Sowman (2011) notes that the promulgation of the Marine Living Resources Act (MLRA) of 1998 (RSA, 1998) gave recognition to subsistence fishers as a legal category of fishers and demonstrated the new government's commitment to redress for marginalised fishers and their communities.   However, the MLRA's restrictive definition of 'subsistence' resulted in the exclusion of a significant number of traditional and small-scale fishers from the new fisheries policy framework, leaving many without formal recognition or access to the resources they had historically depended on (Auld &Feris, 2022). A pivotal moment in the policy process occurred in 2005, when fishers, their communities, non-governmental organisations (NGOs) and academics approached the Equality Court to challenge the exclusion of small-scale fishers from access to fishing rights (Sowman & Sunde, 2021). This action resulted in the 2007 court ruling that required the (n) Department of Environmental Affairs and Tourism (DEAT) to allocate interim rights to excluded fishers and to develop a dedicated policy for small-scale fisheries.

After extensive consultation and negotiation, the Policy for the Small-Scale Fisheries Sector in South Africa was gazetted in June 2012, followed by the promulgation of regulations and amendments to the Marine Living Resources Act (MLRA) in March 2016 (DAFF 2012). The Small-Scale Fisheries Policy (SSFP) explicitly recognises the unique character and needs of small-scale fishers, defines access rights and aims to facilitate their effective participation in resource management. Central to the policy is a commitment to a human-rights-based approach, emphasising food security, poverty alleviation, the recognition of customary practices and equitable access to marine resources (DAFF 2012). South Africa has approximately 147 small-scale fishing communities, with around 28,338 fisher households and 29,233 subsistence fishers (Issacs et al, 2022).

The Blue Economy concept

The Blue Economy has rapidly emerged as a dominant discourse in global and national discussions about value creation in ocean spaces, emphasising the sustainable use of marine resources for economic growth, improved livelihoods and ecosystem health. Ocean governance, which encompasses the frameworks, policies and institutions that regulate human interactions with the ocean, has become central to this agenda. As the world’s oceans have witnessed a proliferation of anthropogenic pressures, they can no longer be viewed as inexhaustible resources.

In response to the mounting challenges posed by these pressures, the United Nations' Sustainable Development Goal 14 (SDG 14: Life Below Water) establishes a global mandate for the conservation and sustainable management of the world’s oceans, seas and marine resources. It, therefore, explicitly recognises the ocean's role in future economic, social and ecological development. 

Gunter Pauli is credited with coining the term ‘Blue Economy’ in 1994. In his book entitled “The Blue Economy: 10 Years, 100 Innovations, 100 Million Jobs”, the economist outlines a blue economy paradigm which seeks to balance economic development with ocean and environmental sustainability (Pauli, 1994). In this model, it is emphasised that the Blue Economy, as an economic model, involves the sustainable use of coastal and marine resources, aiming to stimulate economic growth, support livelihoods and maintain the health and integrity of ocean ecosystems. This approach encompasses all commercial activities associated with ocean and coastal environments, including fisheries, aquaculture, maritime transport and engineering, renewable energy, marine biotechnology and coastal tourism. By integrating economic development with environmental stewardship, these activities aim to strike a balance between value creation and long-term ecological sustainability, as well as social benefits.

The concept of the Blue Economy gained traction following its introduction at the United Nations (UN) Rio+20 conference held in 2012 (Lee et al., 2020). During the preparatory phase for Rio+20, many coastal nations expressed concerns about the relevance and applicability of the Green Economy framework to their specific contexts (UN, 2014). As a result, strong advocacy emerged for the adoption of a "Blue Economy" approach that would more directly address the priorities and realities of ocean-dependent countries, especially Small Island Developing States (SIDS), leading to increased visibility and integration into global policy discussions.

Various definitions and interpretations of the Blue Economy are cited in the growing body of literature (see Das, 2023; Smith-Godfrey, 2016; Voyer et al., 2018; Lee et al., 2020; Picken, 2023). The concept has also given rise to related terms such as Blue Justice, which emphasises social equity and fair access for marginalised coastal communities (Reis-Filho et al., 2024; Arias-Schreiber et al., 2022); Blue Growth, which focuses on the sustainable expansion of ocean-based industries (Eikeset et al., 2018); Blue communities, a concept that draws on the multi-dimensional concept of well-being to foreground social, cultural and environmental factors alongside economic growth and Blue Sustainability, which stresses the long-term health of marine environments alongside economic and social objectives. Given the increasing recognition of the Blue Economy’s importance for sustainable development in coastal nations, these interconnected frameworks are likely to continue expanding and shape ocean governance and policy in different countries and contexts (Voyer et al., 2018).

The Blue/ Oceans Economy in South Africa

Like many other coastal nations, South Africa was also motivated by the economic and social benefits of the Blue Economy and its potential impact on the country's economic, social and developmental needs (Sowman & Sunde, 2024; Loureiro et al., 2022).  With a coastline that stretches nearly 2800 kilometres (the second largest on the African continent), the country is strategically positioned along one of the world’s key maritime shipping corridors. It, therefore, plays a vital role in global marine transportation. Its rich coastal environment is influenced by the convergence of three oceans, which are central to South Africa's economy. With approximately 30% of the population residing within 60 km of the coast and over 90% of all trade involving a maritime element, South Africa has been described as a 'maritime economy' (Struwig et al 2023; Walker, 2018).

Given the country’s maritime nature and developing plans for its ocean economy, the South African government approved the adoption of the Malaysian Big Fast Results (BFR) methodology in 2014 to accelerate economic development across various sectors, including the ocean economy. This initiative, known locally as Operation Phakisa-Oceans Economy (Phakisa means hurry in Sesotho, one of South Africa’s 12 official languages), was launched to fast-track the implementation of key objectives outlined in the country’s 2030 National Development Plan (NDP), particularly the eradication of poverty, unemployment, and inequality (Stuwig et al., 2024; Vreÿ, 2019). In his speech to introduce Phakisa, former South African president Jacob Zuma noted that the starting point for this process was “that South Africa is surrounded by a vast ocean and yet we have not fully taken advantage of the immense potential of this untapped resource. The oceans have the potential to contribute up to 177 billion rand to the Gross Domestic Product and create just over one million jobs by 2033. To further explore this potential, we brought together teams from government, labour, business, academia and other sectors to work together in experimental laboratories to explore all possibilities and further unlock the potential of our country's vast coastline” (Presidential speech, 2014). From Phakisa’s introduction, it was also outlined that six priority areas and two cross-cutting themes were identified for South Africa’s ocean economy. These included marine transport and manufacturing, offshore oil and gas exploration, fishing and aquaculture, marine protection services and ocean governance, small harbour development, coastal and marine tourism, skills and capacity building, and research, as well as technology and innovation (OEMP, n.d.). 

Since its launch and introduction, the implementation of Operation Phakisa-Oceans Economy has yielded mixed and modest economic results and impacts (OEMP, n.d) that also demonstrate variations across the six priority areas. A comprehensive economic analysis undertaken on behalf of the Department of Forestry, Fisheries and the Environment (DFFE) was conducted in 2021 and estimated that Operation Phakisa-Oceans Economy had the potential to contribute between ZAR129 to ZAR177 billion to South Africa’s GDP by 2033 (compared to ZAR54 billion in 2010) and create between 800 000 and 1 million jobs (compared to 316 000 in 2010) (OEMP, nd). Further forecasts to 2035 suggest that the ocean economy will contribute approximately 4.5% to South Africa's GDP (around ZAR 166.6 billion) and support about 608,253 jobs, representing 2.9% of total employment (Zimmerman, 2021 quoted in OEMP, n.d).

The priority areas highlighted above comprise various subsectors, each with its own targeted and projected gains from the value creation process in South Africa’s ocean spaces. The scope of this research paper does not allow for a detailed examination of all these sectors and subsectors. Instead, this forthcoming section aims to expand on the fisheries sector (with particular reference to SSF) and how these features within South Africa's ocean economy framework[2]. Efforts to expand on South Africa's plans to grow its ocean economy have resulted in a relatively new Oceans Economy Master Plan (OEMP), whose broad vision aims “ to sustainably unlock the socio-economic potential of the Oceans Economy so that South Africa is globally recognised as a fully-fledged maritime nation by 2035”.

The OEMP presents a comprehensive sub-sector plan for fisheries and acknowledges that the industry (which consists of industrial, commercial, subsistence, recreational or artisanal activities) is highly complex.  Regarding the role of SSF, the OEMP describes this sector as recently recognised in law, where basic gear and small boats are used to earn a living and many coastal communities have fished South Africa's waters for generations. Fishing is, therefore, deeply rooted in their culture and heritage. It further highlights that these fishers are granted rights through fishing cooperatives, and about 95% of their diverse catch, ranging from mussels and finfish to seaweed and abalone, is consumed locally (OEMP, n.d).

Challenges identified for the sector and those specifically relevant to SSF are also outlined in the OEMP. Key issues include the overexploitation of marine resources and the impacts of climate change, both of which threaten the sustainability and ecological integrity of these ecosystems, as well as the livelihoods that depend on them. For small-scale fisheries, the situation is further compounded by limited access to essential resources, such as vessels and equipment, as well as access to technology.  The absence of storage and processing facilities, poor infrastructure and high operational costs further hinder their ability to operate effectively. Environmental threats from offshore oil, gas and other mining activities add to the pressures faced by fishing communities.

Discussion

Advancing sustainable small-scale fisheries in the Ocean’s economy of South Africa

The question of whether the Blue Economy can offer sustainable livelihoods for small-scale fisheries (SSF) and ensure ecological sustainability in South Africa is complex and multifaceted. Many challenges faced by SSF communities, such as continued marginalisation, limited access to resources and vulnerability to environmental and economic pressures, are longstanding and also acknowledged in sector-specific ocean economy frameworks.

Critiques in South African academic literature highlight that while the Blue Economy promises economic growth and sustainable oceans, its implementation and associated processes may exacerbate the precarious conditions of SSF communities (Sowman & Sunde, 2024; Bond, 2019). For example, Operation Phakisa’s focus on rapid economic development and industrial ocean sectors raised concerns and sparked resistance from SSF communities, NGOs and activists, among others. Widespread media attention and academic critiques have emphasised that Phakisa’s strong economic growth focus has sidelined social and environmental concerns. For example, Bond (2019) argues that the initiative, especially under the Zuma administration, was overhyped and failed to deliver meaningful benefits to communities that also faced exclusion from marine spaces due to industrial developments promoted by Phakisa.  Moreover, the framing of the ocean primarily as a site for capital accumulation conflicts with the cultural and livelihood values of communities, who experienced dispossession and exclusion from fully benefiting from coastal and marine resources.

Local resistance movements, such as the "Oceans Not Oil" coalition, emerged, uniting small-scale fishers, indigenous groups, scientists, and environmental NGOs in opposition to offshore oil and gas activities promoted by Phakisa, demanding a shift toward ocean-centred, socially just and ecologically sustainable policies (Solomon, 2023). Protests led and organised by the coalition opposed a seismic survey aimed at exploring petroleum beneath the ecologically sensitive Pondoland region on the Wild Coast of South Africa. This survey was to be conducted by BG International, a subsidiary of Royal Dutch Shell, in collaboration with Shell Exploration and Production SA and the local consortium Impact Africa Limited. The protests sparked widespread mobilisation among civil society groups both across Africa and internationally (Healy 2022 quoted in Solomon 2023). Following two court interdicts, one of which was successfully revoked, Shell's reconnaissance permit, along with all its subsequent renewals, was revoked, and the company was ordered to pay legal costs. Solomon (2023) further notes that what many protesters were attempting to make visible was not only the public accountability of Shell and Impact Africa but, more specifically, a meaningful reconnection of the marine environment with paradigms of relation and critical care. In South Africa, the sea holds sacred significance for many, regarded as a source of ancestral power, a place for spiritual grounding and healing and therefore deeply embedded in the cultural practices of local communities (Sibeko 2020, quoted in Solomon 2023).

A key tension lies in balancing economic expansion with social equity and environmental protection, all of which are core pillars of the Blue Economy. South Africa's SSF policy, for instance, legally recognises small-scale fishers and their communities, aiming to promote equitable access and co-management as part of its overarching objectives. This, therefore, aligns with the Blue Economy principles of sustainability and inclusion (WWF, 2018; DFFE, 2012). However, there have been delays and slow, uneven implementation of policies, which present challenges that will impact and leave many SSF communities vulnerable to exclusion from Blue Economy initiatives (Sowman & Sunde, 2024). This marginalisation is what Bennette et al. (2021) describe in their literature review, which identifies ten injustices that can result from an unjust ocean economy: (1) dispossession, displacement, and ocean grabbing; (2) environmental justice concerns arising from pollution and waste; (3) environmental degradation and the reduction of ecosystem services; (4) undermining the livelihoods of small-scale fishers; (5) restricting access to marine resources essential for food security and well-being; (6) inequitable distribution of economic benefits; (7) social and cultural impacts; (8) marginalisation of women; (9) abuses of human and Indigenous rights; and (10) exclusion from decision-making and governance processes. These interconnected injustices underscore the complex social and environmental challenges that blue economy initiatives can pose, particularly to coastal communities such as small-scale fishers.

Effectively advancing small-scale fisheries (SSF) within South Africa's Blue Economy requires a multidimensional approach that addresses and promotes socio-economic empowerment while ensuring ecological sustainability. Building on this foundation, four key pathways are identified here as essential for strengthening small-scale fisheries (SSFs) and ensuring their effective integration into the broader ocean economy. Firstly, securing equitable access to marine resources is foundational. The South African Small-Scale Fisheries Policy (2012) establishes community-based rights allocation, moving away from individual rights toward collective resource management. However, challenges remain in the effective implementation and allocation of these rights, which include bureaucratic delays. Scholarship on promoting sustainable and effective co-management regimes advocates that empowering local communities has demonstrated success in balancing resource sustainability with livelihood security (Pomeroy & Rivera-Guieb, 2006; Gelcich et al., 2019). It is, therefore, imperative to build and support these models by strengthening cooperative governance structures, improve capacity building and ensuring that SSF communities have meaningful participation in decision-making processes.  The contribution and inclusion of SSF community perspectives are paramount.

Secondly, improving economic opportunities through value chain development and infrastructure investment is vital. A recent 36% increase in key fish species to SSFs by South Africa’s DFFE (2025) provides a crucial resource base, but maximising benefits from these allocations requires better access to processing facilities, markets and finance. These remain ongoing challenges for the sector, and therefore, it necessitates support for cooperative entities that can help convert resource access into tangible socio-economic gains (Sowman & Sunde, 2021). Thirdly, addressing environmental sustainability and climate resilience is essential, considering the vulnerability of SSFs to ecosystem degradation and climate change. Blue Economy initiatives often focus on industrial sectors, such as offshore energy and aquaculture, which can spatially and ecologically compete with Small-Scale Fisheries (SSF). Examples of these concerns have been discussed above; hence, integrating SSF concerns into marine protected area (MPA) planning and ecosystem-based management approaches can reduce conflicts and promote biodiversity conservation alongside livelihoods (Sowman & Sunde, 2021). Furthermore, building adaptive capacity through community empowerment, monitoring and diversification of fishing practices can support Small-Scale Fisheries (SSF) resilience to climate variability (Barange et al., 2018).

Finally, strengthening policy coherence and multi-level governance is vital. The fragmentation of governance approaches and the slow pace of policy implementation have hindered the progress of SSF in South Africa. Aligning national policies with regional and local governance frameworks and fostering collaboration among government departments, civil society, traditional and local authorities, communities as well as other relevant stakeholders can create an enabling environment for SSF development (Phiri et al., 2025). Internationally, integrated ocean governance frameworks that embed social justice and human rights principles, such as the FAO Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries (FAO, 2015), offer valuable guidance for achieving ocean economy goals. Embedding these principles into South Africa's Oceans Economy landscape is essential not only for the resilience of small-scale fisheries but also for realising a just, inclusive and sustainable ocean economy.

Conclusion

Small-scale fisheries (SSF) in South Africa have evolved amidst a complex history of marginalisation, policy reform and shifting ocean governance priorities. Its enduring importance for food security, livelihoods and cultural identity is now being re-examined in light of Blue Economy strategies that promise both opportunities and may present challenges for coastal communities. Within this context, this paper considered the integration of SSF into national ocean economy frameworks and highlighted persistent gaps between policy ambitions and the realities faced by small-scale fishers.

The paper’s contribution lies in its examination of how structural inequalities, historical marginalisation and evolving governance frameworks continue to shape the experiences of small-scale fishing communities. It emphasises the value of participatory governance and community-oriented pathways for fostering sustainable livelihoods. By foregrounding the needs and values of SSF communities, the research contributes to advancing the discourse on equitable and sustainable ocean governance in South Africa. Looking forward, the contribution proposes that meaningful progress for SSF within the Blue Economy will require sustained policy support, capacity building and the adoption of just and equitable governance principles. Strengthening multi-level collaboration, ensuring genuine participation of SSF communities in decision-making and aligning national strategies with international best practices will go a long way in realising a sustainable ocean economy. Ultimately, fostering a truly inclusive and sustainable ocean economy in South Africa will depend on bridging the gap between policy and practice and ensuring that small-scale fisheries are recognised as vital contributors to both local livelihoods and the country’s equitable ocean future.

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[1] FAO- The Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries in the Context of Food Security and Poverty Eradication (SSF Guidelines)  Available at: https://openknowledge.fao.org/server/api/core/bitstreams/edfffbfc-81e5-4208-a36f-334ff81ac10f/content 

[2] While the term blue/ oceans economy has been used interchangeably in this work, it is also commonly used in other scholarly literature. However, Sowman and Sunde (2024) argue that South Africa's gradual shift from referring to the "blue economy" to the "ocean economy" suggests a growing emphasis on economic growth while downplaying broader goals related to sustainability and social justice.

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This report has been published by the Inclusive Society Institute

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