Additional Information

7.2 Fisheries medium-term work programmes

The activities of the Ministry to achieve the three contributing outcomes can be divided into two broad areas:

• maintaining integrity of the fisheries management regime
   
  
• developing and enhancing fisheries strategies.
   
  

The work programmes in each broad area, and their links to fisheries outcomes and government themes, are summarised in Table 2. Most work programmes contribute to more than one outcome and government theme, and are delivered with input from a number of business groups within the Ministry.

Table 2: Ministry work programmes and linkages to outcomes and government priorities

7. 2. 1 Maintaining integrity of the fisheries management regime

This work area provides core services to maintain the integrity of New Zealand's fisheries management regime. Approximately 85 percent of Vote Fisheries is devoted to this work area. The Ministry is continually investing in improving the services delivered as part of our ongoing functions. The component activities are described below.

Compliance and enforcement

Fisheries compliance activities promote voluntary compliance and aim to create effective deterrence. The activities are tailored to achieve compliance in commercial and non-commercial fisheries, deter poaching and black market operations, and prosecute offenders.

Education strategies and media campaigns are used to raise awareness of fishing rules. The Ministry engages with stakeholders to identify practical solutions to compliance problems, and overt inspections of commercial, customary, and amateur fishers help to raise the profile of this work. Deterrence is achieved through covert surveillance in high-risk fisheries, dedicated investigation activities, and implementing an enforcement response when illegal activity is detected. Minor infringements incur infringement fees, while serious offending is met with prosecution.

As fisheries plans are developed, compliance activities will be reviewed and adjusted as necessary to ensure they are aligned to the areas of greatest risk within each plan. Improvements to compliance information systems and processes, including improved
offence detection and analysis, will enhance this risk focus. This approach depends on working with tangata whenua and stakeholders to develop the objectives and management strategies in each fisheries plan.

The Ministry is participating in the development of the International Monitoring, Control and Surveillance Network to develop international arrangements to deter and reduce IUU fishing, particularly in the toothfish, orange roughy, and tuna fisheries.

Policy advice

The Ministry provides advice to the Minister and Government on the development and review of policy and legal frameworks for fisheries management and whole-of-government programmes in New Zealand and internationally.

Regulatory advice

The Ministry provides advice to the Minister on sustainability and management decisions under the Fisheries Act. This includes advice on Total Allowable Catch (TAC) and Total Allowable Commercial Catch (TACC), and measures to reduce the impact of fishing on protected species and habitats. Preparing the advice involves developing management options and consultation with tangata whenua and stakeholders.

We also process a wide range of statutory applications, for eventual decisions by the Minister or Chief Executive. These include:

• kaitiaki appointments, establishment of mätaitai, taiapure, and temporary closed areas (customary management)
   
  
• fish transfers and freshwater fish farms
   
  
• special permits
   
  
• assessments of fishing impacts for proposed aquaculture management areas
   
  
• implementing the Marine Protected Areas Policy
   
  
• marine reserve concurrence.
   
  

Research and information

The Ministry contracts scientific research to assess stock levels and the effects of fishing on the environment, and to survey and assess New Zealand's marine biodiversity. Research is undertaken on a phased, prioritised basis of individual fisheries at a frequency necessary to monitor whether or not fisheries are decreasing as a result of overfishing, and to enable the Ministry to keep information current. Analysis is also carried out on the implications of management options, and cultural, social and economic factors relevant to fisheries management.

Observers on commercial fishing vessels provide an independent source of high quality scientific and other information from commercial fishing operations. They are also used by external agencies (e. g. the Department of Conservation) to gather fisheries-related information.

Information from research and observers supports the management decisions for New Zealand's fisheries, particularly setting TAC limits and monitoring the environmental impact of fishing activities. It forms the basis of advice on management options for future years.

Registry services

Accurate and timely registry information supports management decisions within each fishery. Registry information (including permit holder register, vessel registers, quota and ACE ownership, and catch data)is collected by Commercial Fisheries Services Ltd (FishServe), under contract to the Ministry or as part of its devolved responsibilities. FishServe also administers the introduction of new species to the QMS. The Ministry ensures contracted or devolved registry services meet the expected standards and specifications for those services.

7. 2. 2 Developing and enhancing fisheries strategies

This work area includes eight programmes directed at achieving our goal and outcomes.

Achieving environmentally sustainable fishing

This work programme aims to restore and maintain highly productive and resilient fisheries, as well as minimise the adverse impacts of fishing on the environment.

A range of measures to achieve environmentally sustainable fishing are in place, including catch limits, method restrictions, observer programmes, marine mammal by-catch limits, and requirements to use by-catch mitigation devices. Improving performance depends on better scientific information, making progress on operational initiatives, and developing new management tools. It also requires working with other agencies to reduce adverse effects of other activities (in particular sedimentation and pollution)on the fisheries environment.

Catching fish affects the harvested stock, and can cause other environmental effects such as incidental capture of seabirds or disturbance to benthic communities. Environmental fisheries standards are being developed and will address the direct and indirect effects of fishing on the environment.

Like other standards, this will define the minimum level of performance expected of fisheries management and may be met through a range of operational initiatives. The Marine Protected Areas Policy will establish a representative network of protected areas. Adoption of the Benthic Protected Areas, initially proposed by the fishing industry, has resulted in the closure of 1. 2 million square kilometres of the seabed from bottom trawling. The National Plans of Action for protected species such as seabirds, sealions, and Hector's/Maui's dolphins will also give effect to fisheries environmental standards.

To set effective standards the Ministry needs information on different parts of the environment (e. g. fish, birds, seals, habitat) and the risks to them resulting from fishing. Reliable information is also needed on the status of harvested stocks and the removals due to fishing. The high cost of getting good information means that decisions often need to be made with limited information.

Building value through fisheries plans

Since 2005, the Ministry has been committed to developing fisheries plans. Fisheries plans are about working with stakeholders to get the best value from our fisheries. This means working with stakeholders in each fishery to set agreed management objectives and to design management strategies to achieve the objectives in a cost-effective way.

• Building value for the commercial sector is expected to focus on cost-effective service delivery, minimising TACC volatility, assurance that the benefits of investing in fisheries rebuilding and enhancement will not be unreasonably reduced through reallocation to non-commercial fishing.
   
  
• Building value for the amateur sector is expected to focus on rebuilding particular fisheries, providing for higher levels of abundance, and providing for separation of commercial and amateur fishing effort in key locations.
   
  
• Building value for the customary sector is expected to focus on recognition of kaitiakitanga, providing greater abundance of fish, taking a regional approach to local management measures, and taking an integrated approach to resource management.
   
  

A fisheries plan will bring together the harvest plan, monitoring, research, enforcement, and other elements of fisheries management, and show the links between these elements. Fisheries plans will allow the Ministry to prioritise its resources. Once developed, fisheries plans will guide the statutory management and service decisions for the fisheries covered in the plan. Fisheries plans will be reviewed every five years, allowing further information to be included in the plan.

In 2007, the Ministry completed preliminary plans describing the current management for all stocks - organised into 26 fisheries complexes. These plans will form the basis of discussions with tangata whenua and stakeholders on how to get the best value from each fishery. We are working with stakeholders in the middle-depths and deepwater fishery and in five inshore fisheries (Northland Scallops, Northwest Finfish, Rock Lobster in Area 3, Challenger Finfish, and Southern Shellfish) to define objectives, evaluate risks, and determine management strategies.

Linking fisheries plans to the fisheries outcomes depends on the definition of standards. The key environmental fisheries standards have been completed or are near completion ¹ .

Promoting economic transformation

A key priority for government over the next ten years is to facilitate the transformation of the New Zealand economy into a high income, knowledge-based market economy, which is both innovative and creative and delivers many benefits to New Zealanders.

The New Zealand fishing and aquaculture industries are major export earners for New Zealand. In the year ended December 2007, 316, 000 tonnes of seafood products were exported, worth a total $NZ 1. 3 billion². The value of seafood exports places the industry as New Zealand's eighth largest export earner. Aquaculture exports contribute approximately $240 million³ of this value - aquaculture production is a small but increasingly important component of the seafood industry in New Zealand and worldwide. Business activity based on amateur fishing is significant in certain regions, such as Hauraki Gulf, Bay of Islands, Bay of Plenty and Marlborough.

To facilitate economic transformation, the government has established programmes to promote environmental certification in the seafood sector, and is supporting development of sustainable aquaculture. The Ministry also works in international forums to advance New Zealand's fisheries interests. In multilateral and bilateral trade negotiations our aim is to reduce trade barriers for seafood. In regional or high-seas fisheries management forums our aim is to ensure responsible fishing and maintain or improve access by New Zealand fishing interests.

Environmental certification of New Zealand seafood

The growing trend towards a more environmentally-conscious global marketplace presents significant opportunities and risks for New Zealand's seafood sectors. In 2007 the Ministry initiated a programme to work with the seafood industry (fishing and aquaculture) to obtain environmental certification for New Zealand seafood. The programme aims to enable the industry to respond to environmental performance requirements. Under the four-year programme, the Ministry will obtain an independent assessment of our management regimes against internationally-recognised standards, and as of 2008/09 government will contribute to the certification costs of New Zealand seafood through a contestable fund.

Sustainable Aquaculture

Aquaculture has been identified by Government as a priority industry for growth. The Government's response to the Aquaculture Sector Strategy was released in 2007 and sets out a commitment to work with industry on five key issues: building the confidence to invest, improving public support, promoting Mäori success, capitalising on research and innovation, and increasing market revenues. The Ministry leads an across-government team which is working closely with regional authorities and key stakeholders to implement the response over the next two years.

We are also working in partnership with Aquaculture New Zealand to develop world-leading standards for sustainable aquaculture development in New Zealand.

Encouraging responsible fishing in the Pacific and high seas

As a country with fishing interests in high seas fisheries New Zealand has a direct obligation to cooperate with other countries to ensure that high seas fisheries are managed sustainably The Ministry works in multilateral organisations such as the OECD and FAO, and within the regional fisheries management organisations (RFMOs) of which we are a member 4 , to promote effective fisheries management policies and practices Our focus is on strong governance arrangements, robust science processes, allocation of access, and effective monitoring control and surveillance mechanisms to tackle IUU fishing We also assist Pacific Island countries to develop enduring and effective fisheries management regimes, through our capacity development programme.

Access to fisheries in the high seas is of direct importance to the New Zealand fishing industry as it moves to take advantage of fisheries opportunities beyond the New Zealand Exclusive Economic Zone Poor governance of high seas fisheries for highly migratory and straddling fish stocks also has the potential to directly impact on New Zealand's domestic fisheries for species whose range is partly within our EEZ.

New Zealand has taken a lead role, along with Australia and Chile, in establishing the South Pacific RFMO The Interim Secretariat has been established in Wellington Interim measures to manage the impact of bottom fishing on the benthic environment, agreed by the 27 participating countries, were implemented for New Zealand vessels as of October 2007 The South Pacific RFMO has the potential to set a new international standard for the regional governance of high seas fisheries, and we will be striving to ensure that best practice fisheries management and governance frameworks are incorporated into the new organisation.

Recognising Treaty of Waitangi and customary rights

We have ongoing obligations deriving from the Fisheries Deed of Settlement, historical settlements, and Aquaculture Settlement. Foreshore and seabed negotiations can also give rise to obligations on the Ministry. Development and implementation of a Treaty Strategy is a key initiative to enhance our ability to deliver on our obligations.

1992 Fisheries Deed of Settlement

Three key obligations came from the Fisheries Settlement:

• implementing the customary fishing regulations;
   
  
• providing for input and participation of tangata whenua in decisions that affect their non-commercial interests; and
   
  
• transferring settlement quota as new stocks are introduced into the QMS.

The Treaty Strategy aims to deliver on aspects of our settlement obligations by building better working relationships with tangata whenua and recognising kaitiakitanga. Regional iwi forums are being established as a key mechanism to provide for input and participation.

2004 Aquaculture Settlement

Under the Aquaculture Settlement, equivalent to 20 percent of aquaculture space created after 1992 is to be allocated to iwi.

To meet this:

• the Crown must transfer to Te Ohu Kaimoana Trustee Limited the equivalent of 20 percent of the marine farming space created between 1992 and 2004. The Crown's obligation can be achieved by:
   
  
  • the transfer of additional space, up to 20 percent in new Aquaculture Management Areas, or
     
    
  • from 2008, by the purchase and transfer of the space associated with established marine farms, or
     
    
  • from 2013, the payment of the financial equivalent.
     
    
• regional councils must transfer to Te Ohu Kaimoana Trustee Limited 20 percent of the space in each new Aquaculture Management Area.
   
  

Te Ohu Kaimoana Trustee Limited is responsible for allocating the settlement assets to iwi aquaculture organisations.

Foreshore and Seabed negotiations and agreements

The Ministry contributes to Government negotiations with tangata whenua who have claims to the foreshore and seabed. Our focus in these negotiations is to provide for management of customary fishing by tangata whenua, in accordance with the Fisheries Act and provisions of the 1992 Fisheries Deed of Settlement.

Historical settlements

The Ministry also contributes to Government negotiations with iwi in relation to Treaty settlements, and implements aspects related to fishing.

Building capability among iwi and amateur fishing stakeholder groups

The aim of building capability among iwi and amateur fishing stakeholder groups is to:

• Achieve more effective input from these groups into fisheries management consultation processes, including development of fisheries plans.
   
  
• Enhance their ability to work directly with other stakeholders - especially the wider commercial sector - to reach agreement on management initiatives.
   
  

To build capability and increase engagement with tangata whenua we are establishing and supporting regional forums of iwi and hapü. All Ministry business groups contribute to capability building by sharing information about fisheries management. In addition, we have two dedicated teams supporting iwi forums:

• Pou Hononga -manage the relationship between tangata whenua and the Ministry
   
  
• Pou Takawaenga - assist iwi forums ((iwi and hapü) in implementing customary management practices, including developing rohe moana plans.
   
  

To build capability and increase engagement with amateur stakeholders, the Ministry provides administrative and policy support to the seven regional recreational forums, and the Amateur Fishing Ministerial Advisory Committee (AFMAC).

Developing and enabling a long-term vision and management stragegy for New Zealand fisheries

A long-term vision should guide the development of a long-term focused Fisheries Strategy. The development of this strategy for New Zealand fisheries will incorporate revisions of the outcomes to match the vision, and legislative reforms to enable the vision and strategies to be delivered.

Building consensus on the direction for fisheries management is important to secure broad support from tangata whenua and stakeholders for our management initiatives and to encourage them to align their activities and investment with the strategy.

We intend to use meeting with stakeholders to seek their views and suggestions on the elements of a new vision and Fisheries Strategy. Discussions will give the Ministry an appreciation for, and understanding of, the long-term aspirations of tangata whenua and stakeholders, and their views on how to get there.

Monitoring and reporting on fisheries

This work programme includes the establishment of a framework to monitor the performance of fisheries, identification of performance indicators, collection of data, and reporting of results. Once the framework and data collection procedures are in place, there will be ongoing reporting and evaluation. Monitoring helps assess whether, and how, fisheries management is contributing to New Zealand's social, economic and cultural well-being, and environmental sustainability. It is important to allow the Ministry to be confident that our management measures are effective, and to provide tangata whenua and stakeholders confidence that decisions are properly implemented.
 

¹ These are the standards for harvest strategies, seabirds, benthic impacts, marine protected areas, Hectors/Maui dolphins, and sealions.
² Source: SeaFic export data.Table 5A.
³ Source:NZ Aquaculture Council Annual Report 06/07.
⁴ Western and Central Pacific Fisheries Commission, Convention for the Conservation of Antarctic Marine Living Resources, Commission for the Conservation of Southern Bluefin Tuna, South Pacific Regional Fisheries Management Organisation.