4.1 Mfish organisation
The fisheries management changes in recent years have required Mfish to focus on its role in the delivery of the Crown’s core responsibilities and its ability to respond to stakeholder expectations for involvement and participation in fisheries management decisions.
Since the end of 2000 Mfish has been giving effect to a new organisational design, intended to re-align processes and internal structures, and to ensure we have the required people skills to carry out the functions that are critical to the Crown’s role in fisheries management. The charts below summarise the current organisational structure and functional responsibilities.
In relation to the existing governance of Mfish:
the three person Executive Team, comprising the Chief Executive and two Deputy Chief Executives, is accountable for setting the Mfish strategic direction, establishing frameworks, oversight of Statement of Intent, and monitoring the internal environment and external relationships
the Management Forum is made up of the managers from each of the ten Mfish business groups. The Forum is collectively accountable to the Executive Team for the day-to-day operational management of Mfish including development, review, and delivery of the Statement of Intent, monitoring performance against the plan, and corporate and information management policies
the Business Managers, reporting to a Deputy Chief Executive, have individual responsibility to deliver on components of the Statement of Intent for which they are accountable including delivery of outputs, cost centre budget management, and people management.
In recognition of the special contribution of its Māori staff, Mfish has established Te Roopu Awatea - the Mfish network for Māori staff - with responsibility for: being the initial source of advice on tikanga and tahä Māori providing peer support for all staff in tahä Māori advising the Executive Team on ways in which Mfish can value the special contribution of its Māori staff
providing feedback to the Executive Team and managers in Mfish on progress in valuing the special contribution of its Māori staff.
The draft SOI includes various initiatives to commence implementation of the new fisheries management approach outlined in section 1.3 of this brief. The governance implications for Mfish are also discussed in section 1.3.
People
As at 31 January 2004, Mfish employed 353 permanent staff plus 10 temporary staff and 10 staff on casual contracts. Mfish has offices in:
Following the organisational design decisions, Mfish commenced implementation of a number of people related policies and initiatives. These are designed to create the opportunities for Mfish staff to excel, retain and develop the necessary skills, move towards a constructive culture and ensure a healthy workplace. The development of an integrated framework of people management policies commenced in June 2002 and is now well advanced. The framework includes policies on individual performance management, conflicts of interest, human resource planning, organisational management and technical specialist development. The framework also addresses the risks associated with knowledge loss through staff turnover and absences.
In addition to those staff on individual employment agreements, Mfish currently has staff who are members of either PSA or NUPE, and who are covered by one of the collective employment agreements of their respective unions. Mfish is currently involved in separate negotiations with both unions to renew the collective agreements.
Capability within Mfish and the wider fisheries sector remains a serious problem. As a small organisation we face substantial recruitment and retention problems. We have particular capacity issues in the policy, fisheries management, science and specialised enforcement areas. We also have a low current level of resourcing in the biosecurity area, relative to the risks and potential costs of incursions. The relatively low fisheries management capacity which characterises New Zealand, means that the government and the sector carries a high level of risk attributable to lack of information and skills. Scarcity of capability, both in the public and private sector, undermines the prospects of policy initiatives that the government may wish to pursue.
The initiatives detailed in the draft SOI to commence implementation of the new fisheries management approach means that new staff positions are being created. Mfish is a growing organisation, both in terms of job types and staff numbers. These matters will require a greater degree of lateral thinking in terms of the Mfish approach to assessing the skills and competencies it needs in the future, and how it recruits new staff. Current thinking includes considering candidates for some jobs who have economic and social science skills instead of the more traditional marine science skills in order to provide a more balanced skill mix to meet the demands of the new approach to fisheries management. As well, there is an immediate need to recruit highly skilled Māori staff throughout the Ministry.
Mfish Functional Responsibilities
Executive Team
Policy & Treaty Strategy
Fisheries management Frameworks (developing & monitoring)
Treaty Strategy
International & Biosecurity
International Fisheries
Biosecurity
Fisheries Management
Fisheries evaluation and environmental standards
Fisheries plans
Operational planning
Treaty Relationship facilitation
Information stewardship
Liaison with other agencies
Education and information
Outputs for Marine reserves
Stock assessment
Sustainability advice
Biodiversity initiatives
Fisheries monitoring
Advice on other statutory processes
Dispute Resolution
Allocation of access
Maori/Customary processes
Special permits
Non QMS management
Aquaculture permitting
Compliance
Planning
Relationship
management
Information
stewardships
Strategies
Enforcement
-
Audit
-
Inspection
-
Surveillance
-
Investigation
Prosecution
Observers
Non-Commercial
Customary liaison
Honorary network
Education
Service Delivery
Registry management
Standards & specs
Contract management
Tendering
Information stewardship
Project co-ordination
Science
Research standards
Tendering & contracting
Stock assessment & research planning advice
Process coordination
Information stewardship
Research data
Information
Information stewardship
Information needs strategy
Systems development
Corporate information analysis & reporting
Manage and operate IT infrastructure
Corporate
Communications
Security
Strategic HR
HR Strategy
Remuneration
Development
People
Management stewardship
Legal
-
Legal services
-
Audit & risk management
Corporate Planning & Services
Business Advisory
Services
-
Finance
-
Govt reporting
-
Business planning
Corporate
Operations
-
Administration support
-
Ministerial support
Executive Team
Deputy CE : Stan Crothers
Chief Executive :W arwick Tuck
Deputy CE : Peter Murray
National Manager Fisheries Management : Mike Arbuckle
National Manager Compliance : Dave Wood
Manager International & Bio-Security : Jane Willing
Manager Policy & Treaty Strategy : Mark Edwards
Manager Strategic Human Resource : Bruce McGregor
Chief Legal Advisor : Cathryn Bridge
Chief Information Officer : John Hanson
Chief Scientist : John Annala
Manager Service Delivery : Russell Burnard
Manager Corporate Planning & Services : Peter Boon
Information
Mfish owns a series of databases, which provide information essential to the development of research projects, setting of catch limits, providing advice to Ministers on fisheries management control measures, and as input into the development of measures for the enforcement of fisheries laws. The more important databases include research, catch effort, the observer database, quota management systems, compliance and enforcement information and reference files.
Finances
Financial information
Mfish has responsibility for output classes within two Votes: Vote Fisheries and Vote Biosecurity (Fisheries). The table below sets out the Main Estimates figures for all Mfish output classes and the corresponding Statement of Intent figures after approval by the Minister.
Output Class |
Main Estimates ($ million GST excl) |
Statement of Intent ($ million GST excl) |
Vote Fisheries |
|
|
Policy Framework |
4.355 |
4.354 |
Fisheries Information and Monitoring |
29.040 |
26.953 |
Regulatory Management |
8.465 |
8.418 |
Fisheries Access and Administration |
9.045 |
9.034 |
Enforcement of Fisheries Policies |
18.888 |
18.759 |
Prosecution of Offences |
3.553 |
3.617 |
Total Vote Fisheries |
73.346 |
71.135 |
Vote Biosecurity (Fisheries) |
|
|
Marine Biosecurity Advice |
2.949 |
2.949 |
Total |
76.295 |
74.084 |
The Main Estimates are completed before the Mfish Statement of Intent is finally approved. Therefore figures in the Estimates do not fully reflect the effort Mfish is directing to its outputs. Changes to the Estimates in order to reflect actual levels of business activity are made at Supplementary Estimates time. The main difference between the totals above reflects the exclusion from the final Statement of Intent of increased observer coverage for seabird bycatch in commercial fishing activities ($2.210 million GST exclusive). This was approved by Cabinet and included in the Main Estimates totals. However, it was withdrawn from the final Statement of Intent, pending further consultation with industry on the economic impacts of the proposal.
Cost recovery
Determination of cost recovery levies occurs annually and, as noted earlier, the levies recover a proportion of Mfish’s total costs from the commercial fishing industry.
Additionally there will be at least one revised cost recovery levy order to accommodate any TAC/TACC changes that may be approved by the Minister following consideration of the final advice paper for the annual Review of Sustainability Measures and Other Management Controls and any changes to the level of observer coverage for seabirds.
The table shows the trend in industry contribution to the delivery of Mfish outputs. The figures represent the final approved Departmental Forecast Report for Mfish for 02/03.
|
98/99 |
99/00 |
00/01 |
01/02 |
02/03 |
03/04 |
04/05 |
|
|
Actual |
Actual |
Actual |
Actual |
Actual |
SOI |
1 Apr 04 proposed |
Planned |
Mfish Departmental costs recovered |
22.168 |
16.775 |
16.826 |
15.997 |
15.780 |
16.844 |
16.583 |
16.170 |
Mfish Research costs recovered, prior to carry forwards |
10.453 |
10.719 |
10.683 |
13.600 |
14.919 |
15.223 |
8.900 |
15.223 |
Total cost recovery levies |
32.621 |
27.494 |
27.509 |
29.597 |
30.699 |
32.067 |
25.483 |
31.393 |
Total Mfish expenditure |
56.457 |
53.946 |
60.441 |
65.004 |
70.662 |
74.084 |
67.042 |
72.900 |
Fisheries Services Levies as % of total Mfish expenditure |
57.7% |
50.9% |
45.5% |
45.5% |
43.4% |
43.3% |
38.0% |
43.1% |
1 April 04 Proposed Cost Recovery levies |
25.483 |
Plus Conservation Services |
2.108 |
Less Settlement Credit |
(15.225) |
Less 2002/03 Under and Over |
(1.172) |
Less adjustment to minimise Under and Over recovery and smoothing |
(3.066) |
Net Recovery 1/4/04 |
8.128 |
Historically, the pattern of Mfish expenditure throughout the year has not fully reflected its budgeted expenditure, which has been the basis for determining cost recovery levies. The result is that there have been both under and over recoveries from the commercial fishing sector. Mfish now has in place processes and protocols to better manage over and under recovery of cost with industry.
Litigation
Mfish operates in an environment in which parties (primarily the fishing industry) often pursue matters through the Courts by way of judicial review. There are currently 22 cases, mostly judicial reviews, against Mfish. Cumulatively these cases will involve very considerable resources for the Mfish Legal and Fisheries Management business groups. This work will be at cost to operational work, and may impede initiatives such the introduction of species to the QMS.
The current issues around which much of the litigation is centred include:
challenges to the introduction of new species in the QMS and allocation of rights
challenges to sustainability measures
challenges to individual permitting decisions.