City Response to Shark Presence off its Coastline and the Threat to Recreational Users

"The City extends its sympathies to Achmat Hassiem and is saddened when an accident like this takes place especially on a young person who has dedicated so much of his own time as a lifesaver in an effort to make Cape Town's beaches safer for other users", says Cllr Marian Nieuwoudt, Mayoral Committee Member for Planning & Environment for the City of Cape Town.

"The City has been working closely with Marine and Coastal Management as well as a range of specialists, and a thorough investigation was undertaken in May 2006. This resulted in a draft white shark and coastal recreation safety strategy which will be tabled for approval by the Planning and Environment Portfolio Committee, early in September
2006 ".

"The City recognises that it has a responsibility to do what is reasonable and appropriate to lower the incidence of attack. Following yesterday's attack, we believe it is imperative to present the main proposals to reassure the public that appropriate action is being considered," says Cllr Nieuwoudt.

The key elements are as follows:

The Natal Sharks Board was asked to investigate all available mitigation measures and their usefulness in Cape Town's specific marine and coastal conditions.

Used widely in KwaZulu Natal, Australia and New Zealand, shark capture devices have been shown to significantly decrease the incidence of shark attacks. These measures were assessed for their suitability to Cape Town and the following recommendations were made:

• The measures (capture devices) would not be effective in Cape Town as white sharks are a transient species. They only work well for species such as Tiger Sharks and Bull Sharks which are resident species
• Shark nets will result in unacceptable levels of bycatch and entanglement of whales, dolphins, and possibly seals. This is a significant concern in False Bay with the high number of whales using the bay for longer periods of the year
• Globally there is a move away from capture devices due to their broader ecosystem impact
• The City will therefore not consider these capture devices

Exclusion nets differ from capture devices in that they are fine meshed nets that create an exclusion zone as opposed to capturing and fishing for animals. Exclusion nets have been used in Hong Kong with success but require calm sea conditions. The specialist review concluded that exclusion nets may be effective at certain beaches in Cape Town, but certain constraints need to be considered such as rough coastal conditions, damage by kelp, high financial and maintenance costs, aesthetic impacts and possible entanglements.

Physical barriers other than nets are constructed to create exclusion zones. These have been used in the past at various beaches around the world. The prohibitive costs, aesthetic impacts and associated environmental impacts of construction limit this as an option globally and for Cape Town.

Significant development of electronic repellents has taken place over the last 10 years while research into the use of early sonar detection devices is underway. The specialist review concluded that electronic repellent technology was not yet at a suitable level to be used as a beach protection method. However, personal electronic devices are available for individual users and are considered effective. Research into the use of early warning sonar devices is underway but is currently prohibitively expensive.

The Shark Spotting Programme in operation in Cape Town at two beaches has to date been effective in warning bathers of white shark presence and closing beaches when required. The Programme is an innovative world first that provides shark safety without increasing mortality of any marine species, while providing job opportunities to previously disadvantaged individuals employed as spotters. In addition, the programme has the potential to contribute significantly to long term white shark research while providing ongoing opportunities for public communication and awareness. The specialist review concluded that the shark spotting programme should be formally recognised as an effective shark safety strategy, although certain limitations exist and should be widely communicated to the public.

It is proposed that the programme be expanded to appropriate areas including:

• Those areas where there is a high level of recreation (ie recreation nodes)
• Where significant white shark activity has been identified
• Where a suitable point of elevation for observation is available

The proposal is to have fully operational shark spotting over the 2006/2007 summer period at beaches such as Muizenberg, Fish Hoek, Strandfontein, Mnandi, Monwabisi and Blue Waters while a roving team asseses a range of other beaches across the peninsula.

The following issues have been put forward as causative factors and the following recommendations were made:

1. Cage Diving

Cage diving has often been labelled as a causative factor in the recent attacks by white sharks in the Western Cape. Based on research started in 1998, there is no current evidence to link cage diving with white shark attacks. The research shows that provided sharks are not rewarded with bait, negative conditioning may in fact occur. Provided that cage diving is closely managed and controlled and that operators comply with the permit regulations, current information indicates that cage diving does not contribute to the risk of attack on unrelated human water users.

The City has proposed the following in its Draft Strategy to DEAT for their approval:

• No additional cage diving permits for False Bay should be issued. The current number of three permit holders is supported.
• The Shark Spotting Programme should be funded to provide independent observers on all cage diving and viewing trips to monitor compliance to the cage diving and chumming regulations and to report on all activities at Seal Island. The Shark Spotting programme has offered to cover the costs of the independent observers until June 2007 after which DEAT has been requested to assist with the funding from the income generated through cage diving.

Seal Management

Seals are natural prey for white sharks. False Bay is home to a large seal colony on an island in the middle of the bay. Speculation has surrounded the concept that the way in which seals are managed increases the risk of shark attack. The specialist review concluded that the seal population has been stable for the last few decades and therefore cannot be attributed to an increase in attacks. Secondly, evidence collected suggests no link between seal pups washed off the island during strong south east winds and trends in shark presence or movement.

Trek Netting

Trek net fishing off Cape Town's beaches has a long history and has become an integral part of the broad diversity of social and economic activities and livelihoods in the City. Recent attacks and shark sightings have been speculated to coincide with trek net activities. The speculation being that by trapping large schools of fish in the shore break, it attracts predators to the area. The specialist review concluded that there is no link between trek net fishing catches and shark attacks, historically the number of white sharks caught in the nets is very low and that restricting or prohibiting trek net fishing is likely to have no effect on lowering the risk of shark attack.

• As a precaution, Muizenberg corner should be cleared prior to any trek netting yellowtail taking place
• he attachment of acoustic receivers to trek nets, to establish presence of tagged white sharks, should be attempted

River Mouths

Following the shark attack on JP Andrew in April 2004, it was suggested that the presence of white sharks at Muizenberg was directly correlated to the opening of the Zandvlei mouth by the City of Cape Town.

Estuaries and river mouths on the Cape Town coastline were assessed and the specialist review concluded that there appears to be no link between estuary mouth breaching and shark attacks. In addition ceasing the breaching (manipulation) of the Zandvlei mouth would do little to lower the risk of attack, while the implications would have significant social and environmental consequences for the Zandvlei Estuary and surrounding communities.

• Research should rather focus on identifying hotspots of shark occurrence in False Bay rather than trying to link shark activity to estuarine breaching events

Emergency Response

The NSRI made the following recommendations:

1. The City of Cape Town shall ensure that appropriate shark attack emergency kits are provided at accessible location at all coastal recreation nodes.
2. At each recreational node, appropriate City officials be trained in the effective use of the shark attack kits
3. The City shall actively review the proposed shark attack emergency response protocol being developed by the NSRI
4. The City, NSRI and SA Lifesaving will ensure that regular first aid training is made available to all interested parties
5. All relevant coastal signage will carry the NSRI emergency phone number
6. The City, NSRI and SA Lifesaving will hold regular simulation exercises

It is proposed that the City give its full support to the current research programme being coordinated by DEAT, Iziko Museum and UCT.
This will include regular inshore tagging of white sharks in a way that does not endanger recreational users.

The specialist review found that public education and awareness is generally under-funded and poorly resourced while no coordinated inter-governmental communication strategy existed.

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Issued by:
Directorate: Communication and Marketing
City of Cape Town
Email: media@capetown.gov.za
Tel: 021 400 2201
Fax:021 957 0023