Chapter 5: The evolution of meanings and perceived benefits as a basis for understanding
5.1 Introduction
In Chapter 2, I presented a conceptual framework showing that users attach meanings to a natural resource as they anticipate and realise benefits from the use of the resource. The framework proposes that users behave in defined ways as a result of meaning association and meaning prioritisation in accordance with defined contexts. These behaviours can be understood as being supportive, contestational, or characterised by purposeful withdrawal or indifference. Meanings and contexts are dynamic over space and time and require ongoing evaluation in relation to the state of the resource (which is also dynamic) and the benefits users derive from the resource. Change is therefore an inherent property of the system. The framework emphasises the process whereby meanings and contexts are negotiated and re-prioritised to direct and inform the formulation of regulatory instruments (‘rules’). The framework therefore implies that institutional design, in particular the extent to which shared understanding in the reordering of meanings is promoted, influences the formation of supportive or resistance behaviours. In Chapter 3 I provide an historical account of the establishment and growth of plantation forests in Tokai and indicate how the policy (public infrastructure) changes of the late 1900s resulted in a landscape transformation from shaded plantation forests to open heathland. This decision has received some support but, importantly, also a great deal of resistance. The Tokai example was deemed suitable to test the ideas encompassed by the framework. In Chapter 4 I discussed the methodological approach and methods used to generate data from the case example.
This chapter is organised according to an historical timeline. I present evidence to illustrate the development and sources of change in public infrastructure in Tokai, firstly over the period when plantation forestry was a growing venture in the Cape and in Tokai. During this period the Cape colonial Government (from the late 1800s), and later the Department of Forestry, were the infrastructure providers (Anderies et al. 2004) in relation to the Tokai landscape. Secondly, I present material corresponding to a period of growing concern around threats to and survival of native vegetation in the Cape, and the development of a movement, driven by the biodiversity conservation sector, to alter the public infrastructure in favour of the conservation of meanings associated with native Fynbos (heathland). A consequence was that, from 2005, the land on which the Tokai plantations were situated, was leased to South African National Parks, at which time Table Mountain National Park took over the management responsibility for Tokai. The change in public infrastructure led to an intervention to remove 600 ha of plantation forest and to replace it with indigenous heath vegetation. This landscape change stimulated support as well as resistance among stakeholders.
The objectives of the research (Chapter 2) were to test the conceptual relationships between meanings, benefits, context and behaviour as suggested in the conceptual framework and to gain insights into the importance of collective ordering of meanings on the level of stakeholder support. To illustrate the development and re-prioritisation of meanings, the experience of benefits and the motivations underpinning responses from a user perspective, I present results from interviews with users of the Tokai landscape. Thirty-eight respondents were interviewed during 2012 (Table 5.1).
Table 5.1. A summary of residence time and activities of 38 Tokai stakeholders interviewed during 2012.
Respondent Nearby resident (y/n)
Number of years as a
user
Hiking/
walking
Mountain biking/cycling
Dog walking
Horse riding
Mushroom collecting
Other uses of the landscape
1 No. Key informant NA No No No No No NA
2 Yes. Key informant NA Yes No No No No NA
3 Yes 12 No Yes No No No NA
4 Yes 20 Yes Yes No Yes Yes NA
5 No recent Yes No No No No Picnics & games for
aftercare school children
6 No. Key informant NA NA NA NA NA NA NA
7 No 20 Yes Yes No No No Mountain bike tour
operator
8 Yes 18 No No Yes No No NA
9 Yes 12 No No Yes No No NA
10 Yes 40 No No Yes No Yes Flower photography;
Children playing in forest
11 Yes 40 Yes No No No No Children playing in forest
12 Yes 27 Yes Yes Yes Yes No NA
13 Yes 7 No No Yes No No NA
14 No 3 No Yes No No No NA
15 Yes 18 Yes No Yes No Yes Children playing in forest
16 Yes 15 No Yes No No No Mountain bike trail
maintenance
17 Yes 15 Yes No Yes No Yes NA
18 Yes 12 No No No Yes No NA
19 No 30 Yes No Yes No Yes NA
20 Yes. Key informant 11 Yes No No No No NA
21 Yes 12 Yes Yes Yes No No Fynbos photography;
historical research
22 No. Key informant 38 Yes Yes No No No Children cycling
23 Yes 37 Yes No No No No Picnics
Respondent Nearby resident (y/n)
Number of years as a
user
Hiking/
walking
Mountain biking/cycling
Dog walking
Horse riding
Mushroom collecting
Other uses of the landscape
24 Yes 30 Yes Yes No No Yes Fire wood collection
25 No. Key informant NA NA NA NA NA NA NA
26 No 16 Yes Yes Yes No No Photographing
mushrooms
27 No 2 Yes No No No Yes Employee at the Tokai
Tea Room (restaurant)
28 Yes 34 Yes Yes No Yes No Running; Wildlife
viewing
29 Yes 32 Yes No Yes No No Scouts - orienteering
30 No. City of Cape
Town official
NA NA NA NA NA NA City of Cape Town,
Biodiversity Management Branch
31 Yes 4 No No No Yes No NA
32 No. SANParks
official
- No No Yes No No NA
33 No 1.5 Yes No Yes No Yes NA
34 No. SANParks
official
- No No No No No NA
35 Yes 4.5 Yes Yes Yes Yes No Running
36 ? 9 Yes No No No No Silvicultural forester
37 Yes. Key informant 22 Yes No No No No Forest management
38 Yes 30 Yes No Yes No Yes Running