4. Operating intentions

Outcome 2: People are able to realise the best value from the sustainable and efficient use of fisheries

What are we seeking to achieve?

This outcome describes the ability of the current generation to obtain the best value from available fisheries resources, while recognising the need to protect the diversity and capacity of the environment and provide for the needs of future generations. Achieving best value for the current generation requires restricting fishing activities to share the available resources in a way that creates the greatest value for the nation as a whole. Values of commercial, amateur and customary fishers differ, both at the group and individual levels. Different types of value cannot be compared easily. Decisions to constrain individuals' access are made by the Minister, Cabinet and Parliament, and the Chief Executive.

What will we do to achieve this?

1. Recognise the full range of values

   Value is generated in many ways. It includes value gained from a thriving seafood industry, from the pleasure of fishing for recreation, and from customary fishing. Value is also gained from non-extractive uses such as viewing a healthy aquatic environment. Best overall value is achieved when available fisheries resources are used by those who obtain the most value from them. To obtain the overall best value the Ministry must recognise the full range of values and understand how they are generated. More research is needed to better understand these values. We will work with tangata whenua and stakeholders to develop fisheries plans with objectives that reflect the value they obtain from specific fisheries. We will also help iwi to develop rohe moana plans that reflect their values and aspirations.

2. Achieve best value across fishing sectors

   To achieve best value from fisheries resources requires the transfer of some harvest rights between the commercial, customary and amateur sectors, and a process that ensures aquaculture takes into account the consequences for fishers. There is currently no mechanism by which stakeholders can adjust levels of access to fisheries between sectors. Instead, adjustments between sectors can only be achieved through the Minister's decisions on sector catch limits. Greater tangata whenua and stakeholder involvement in fisheries management, particularly through fisheries plans, will allow stakeholders to develop proposals on how to obtain best value from their fisheries including, where possible, proposals on how available catch should be allocated between sector groups.

   Information on the value of fisheries to the customary and amateur sectors is generally poor, making allocation decisions difficult. This creates uncertainty for all concerned and reduces incentives to invest in increasing value from fisheries. Improved information on the values and current catch of the customary and amateur sectors will enable consideration of the cost and benefits of alternative management decisions. Information on customary catch is improving as the customary regulations are adopted by iwi. Such information can assist in making allocation decisions that achieve best value. It is also necessary to review the access and allocation framework for shared fisheries.

3. Achieve best value within each fishing sector

   It is important that fishers limit their take to what has been allocated to them. Overfishing causes problems and reduces the value that can be gained by everyone from a fishery. For a limit to be effective there must be appropriate incentives and penalties to motivate fishers to keep within the limits. Increasing the knowledge we have about levels of participation (fishing effort) and catch for all sectors, and levels of compliance will help with overall management.

   The Ministry wants amateur, commercial and customary fishers to be able to get the greatest value from the harvesting of their share of a fishery. Through the Quota Management System, individuals can buy or sell commercial fishing rights. Trading allows commercial fishing rights to be transferred to individuals who are likely to be able to generate the most value. While there is a need for regulations to manage a fishery, the Ministry wants to adopt least-cost interventions, and provide incentives for the commercial sector to choose their own least-cost ways of meeting requirements.

   For amateur fishers, the amount of fish taken depends on the number of people fishing, how often they fish, and the abundance of the fish stock. Individual daily bag limits and restrictions on fishing methods help to control the amount of fish taken. To help maximise the value of amateur fishing the Ministry is working to improve information on catch and values, provide a wider range of statutory tools, and support the establishment of representative organisations which can engage with us and other stakeholders on management initiatives.

   Customary fishing is managed by tangata tiaki and tangata kaitiaki. The amount of fish harvested depends on the number and type of fishing authorisations granted for customary purposes, which in turn is influenced by the state of the fishery and the management objectives of the tangata tiaki/kaitiaki. To help maximise the value of customary fisheries, work is underway to assist iwi and hapü to identify their aspirations for management of fisheries within their rohe, and to facilitate the appointment and training of kaitiaki and implementation of the customary regulations.

   The Fisheries Settlement of 1992 and the Commercial Aquaculture Settlement of 2004 established a basis for settlement of outstanding Treaty claims. Resolution of these claims will, over the long term, deliver resources to iwi and enable them to participate in fisheries management and aquaculture. In addition, foreshore and seabed negotiations and settlement of individual historical Treaty claims may give rise to iwi-specific management arrangements implemented through the Fisheries Act.

4. Contribute to New Zealand's economic transformation

   Increasing the value achieved from fisheries can also be achieved through the Government's economic transformation agenda. The Ministry contributes to the economic transformation sub-themes and related sustainability initiatives. Sustainable aquaculture development and environmental certification are two issues being given particular attention.

5. Provide other opportunities to increase value

   Opportunities to increase value from fisheries can come from increasing the benefits obtained from fishing, or by reducing costs. The Ministry believes stakeholders are well placed to identify how benefits from fishing can be increased and costs reduced. Development of fisheries plans allows stakeholders to identify ways to increase value from their use of fisheries.

   We also work with the fishing industry to advance New Zealand's fisheries interests beyond the New Zealand EEZ. We participate in international negotiations aimed at reducing trade barriers to seafood or securing New Zealand access to international fisheries. We become involved in these activities because only the government can represent New Zealand's interests at international negotiations.

   In addition we work with other government agencies to reduce the impact of other activities on the productivity of fisheries, and ensure decisions about different uses of the marine environment promote the greatest overall benefit to New Zealand.

How will we demonstrate success?

The primary performance measures for this outcome are:

1. Fisheries plans show transparent links between management interventions and management objectives. Government interventions used are either least-cost options or are agreed to by representative stakeholder groups.
    
   
2. Fisheries plans for shared fisheries have stock management and allocation strategies designed to increase value over the period of the plan, and explicitly consider non-commercial values. Preferably these strategies would be agreed by stakeholders.
    
   
3. RFMOs are established and operating for high seas fisheries of major interest to New Zealand and allocation of access to high seas fisheries reflects, as a minimum, the level of New Zealand's participation in those fisheries.
    
   
4. Non-commercial settlement obligations are met by supporting iwi who choose to use customary management tools in areas of special significance.
    
   
5. The Ministry develops measures designed to support increasing the annual value of aquaculture production.
    
   
6. Between 2009 and 2012, the number of New Zealand fisheries with environmental certification increases.
    
   
7. The Crown's obligations under the Mäori aquaculture settlement are completed by 31 December 2014.