Learning from New Zealand's 30 Years of Experience Managing
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Learning from New Zealand’s 30 Years of Experience Managing Fisheries under a Quota Management System 2 Learning from New Zealand’s 30 Years of Experience Managing Fisheries under a Quota Management System Editors Lynne Zeitlin Hale and Jeremy Rude, The Nature Conservancy Contributing Authors Michael Arbuckle, Independent Fisheries Consultant, New Zealand Raewyn Peart, Policy Director, Environmental Defence Society, New Zealand Lynne Zeitlin Hale, The Nature Conservancy Jeremy Rude, The Nature Conservancy Kate Kauer, The Nature Conservancy Michael Looker, The Nature Conservancy Carmen Revenga, The Nature Conservancy Design and Layout Arnaud Ghelfi, Atelier Starno Suggested Citation: Hale, L.Z. and J. Rude (eds.). (2017). Learning from New Zealand’s 30 Years of Experience Managing Fisheries Under a Quota Management System. The Nature Conservancy, Arlington, Virginia, USA. Copyright © The Nature Conservancy 2017 Published by The Nature Conservancy, Arlington, Virginia, USA Cover Photography: Blue maomao round a lush bed of kelp in Poor Knights reserve. © Brian Skerry /National This report was prepared by The Nature Conservancy with the generous support of the Walton Family Foundation Geographic Creative 3 Learning from New Zealand’s 30 Years of Experience Managing Fisheries under a Quota Management System Acknowledgements We cannot express enough gratitude to those many individu- nation’s approach to managing them, has provided the founda- als from across a wide range of New Zealand institutions tion for this report. We would also like to acknowledge our TNC who took time over the last nine months to generously share teammates Michael Looker, Carmen Revenga, Kate Kauer, and their knowledge, perspectives, and passion for New Zealand’s Andrew Harmon who have all made significant contributions to fisheries and ocean environment with us. This report has been this report. We'd like to thank Andrea Moreno for helping carry enriched by the voices and views of members of Government, out overseas interviews and summarizing key topics of interest. Te Ohu Kaimoana, and the Fishing and Seafood Industry, as In addition, we wish to acknowledge Erika Feller, who played well as by those from environmental NGOs, academia, and a central role during the Project’s inception phase, and Ella recreational fishing groups. Arbuckle Page, for her assistance in preparing the chapter on the Central Role of the QMS in the Settlement of Māori Treaty Our sincere thanks and appreciation is extended to the over- Rights. We would also like to thank Elena Abbott for her editorial seas interview participants from the United States, Mexico, assistance and Arnaud Ghelfi for design and layout. Chile, Peru, Indonesia and Belize. These participants include Lisel Alamilla, Nicanor Requena, Larry Epstein, Fery Sutyawan, We are especially grateful to those individuals who reviewed a Elle Wibisono, Michael De Alessi, Azbas Taurusman, Oscar draft version of this report and provided thoughtful and help- Avilez, Darío Rivas, Jorge Farías, Stefan Gelcich, José Luis ful feedback and comments, including Tim Pankhurst, Matt Carrillo Galaz, Víctor Ibáñez, Raúl Villaseñor, Edaysí Bucio Dunn, George Clement, Stuart Brodie, Amanda Leathers, Geoff Bustos, Héctor Licón, Elena Conterno, Mariano Gutierrez, Rowling, Sean Cooper, Basil Sharp, Simon Thrush, Ray Hilborn, Carlos Paredes, Juan Carlos Sueiro, Andrés Chipollini, Kelly and Randall Bess. Denit, Lindsay Fullenkamp, Wendy Morrison, Margaret Spring, Jill Swasey, Ben Martens, Chris McGuire, Geoff Smith, Bob The information and interpretation of events provided by the Dooley, Hekia Bowditch, Joe Sullivan, and Rebecca Metzner. above individuals has been invaluable. However, their engage- Their input was central to shaping this report’s focus. ment in no way implies agreement with or endorsement of the report’s conclusions or accuracy. Responsibility for both these We would like to acknowledge and thank our outstanding aspects rests solely with us, the TNC editors. consultants, Raewyn Peart and Michael Arbuckle. Their deep knowledge of New Zealand’s fisheries and marine environment, —Lynne Hale and Jeremy Rude, Editors along with the people and institutions who have shaped the The Nature Conservancy 4 Learning from New Zealand’s 30 Years of Experience Managing Fisheries under a Quota Management System Preface The Nature Conservancy (www.nature.org) works around the world to conserve the lands and waters on which all life de- pends. We have been protecting important natural places for over 65 years and have steadily expanded the scale and scope Fishing vessels in the Whitanga Harbour of our work. One of the world’s largest conservation organiza- tions and a leader in coastal and marine conservation, The freshwater issues, emphasizing innovative, often market-based © Raewyn Peart Nature Conservancy brings together people of differing views solutions that can advance conservation and sustainable use. to find and apply science-based solutions that work locally and In addition, this programme seeks to learn from New Zealand’s globally. We engage in conservation in 69 countries and all 50 long experience and many achievements in conservation and U.S. states. resource management in order to aid conservation in other places facing similar issues. Given TNC’s engagement in fisher- For TNC, sustainable fisheries mean secure livelihoods, stable ies management around the world, it is keen to learn and share seafood supplies, strong coastal communities, and a healthy insights from New Zealand’s 30 years of experience in manag- ocean. Our fisheries work is based on a proven track record of collaborating with fishers and the fishing industry to use ing their fisheries through a rights-based approach. science, technology, and policy to achieve tangible outcomes. This report attempts to document New Zealand’s approach to We believe that by engaging with fishers, seafood companies, fisheries management and how that approach has evolved over communities, and policymakers we can ensure that fishers and time. We have striven to provide a technically robust, balanced the seafood industry do not have to choose between making a living today and ensuring that their livelihoods last far into review by separating facts from perspectives and by reflecting the future. Together, we protect and restore fisheries and fish the diversity of perspectives that exist. It is our sincere hope habitats while making sure that fishing remains a sustainable that this work is both a contribution to New Zealand and a re- business. source for other nations and groups working towards the com- mon objective of putting fisheries on the path to sustainability. In 2016, TNC launched a new country programme in New Zealand. Adopting a partner approach, we aspire to bring —Dr. Michael Looker, New Zealand Country Director experience, tools, and capacity to support the greater vision for The Nature Conservancy conservation in New Zealand. Our focus here is on marine and November 2017 5 Learning from New Zealand’s 30 Years of Experience Managing Fisheries under a Quota Management System Guide to Using this Report The Report is designed to enable read- ers to rapidly access key insights and lessons from the New Zealand fisher- ies management experience as well as to present a much fuller account of the history and current operation of New Fisherman holds a Zealand’s Quota Management System very large snapper (QMS). Overall insights and lessons © iStock.com / learned from the New Zealand experience Chameleonseye Summary of the Report’s SECTION 2: The New Zealand are summarized in Section 1. Our hope Quota Management System is that by providing this first overview of Major Sections This section provides a comprehensive lessons learned, the reader can be guided SECTION 1: Insights and Lessons overview of how New Zealand manages to specific and in-depth coverage of each from the New Zealand Fisheries its fisheries under the QMS and how area related to the QMS. Each summative Management Experience the system has evolved over its 30-year lesson references a subsequent section of This section draws out insights into and history. It is divided into 4 sub-sections the report that provides more complete lessons from the New Zealand experi- as follows: and detailed information. A summary of ence that we believe will be of interest to each section of the report is found below. overseas audiences. For each lesson, we 2A: The Context for the Introduction We hope that this format facilitates navi- provide a small amount of context and of the Quota Management System into gation through the document and allows refer readers to parts of the report where New Zealand describes the status of readers to hone in on those areas that are they can find more substantial informa- fisheries and the major fishing sectors of most interest to them. tion on the topic. (inshore and deepwater) prior to the Learning from New Zealand’s 30 Years of Experience 6 Managing Fisheries under a Quota Management System Guide to Using this Report introduction of the QMS along with the and TACCs are set, and how research is Monitoring system aimed at obtaining political context that existed in New prioritised and used within these pro- better information for better manage- Zealand when the QMS was first intro- cesses. The section concludes with a de- ment systems and increasing confidence duced in 1986. scription of how allocations are made in in compliance and enforcement is then shared fisheries (fisheries that have both described. 2B: Key Components of the Quota commercial and substantial recreational Management System defines the core and customary harvests). 2D: Funding Fisheries Management components of New Zealand’s QMS describes the components (the Individual Transferable Quota 2C: Fishing Under the Quota (Management, Information, Operational (ITQ), Annual Catch Entitlement (ACE), Management System describes what a Advice, and Services, including research Total Allowable Catch (TAC), and Total fisher needs to be able to fish each year and policy) and cost of implement- Allowable Commercial Catch (TACC)). (a permit and ACE) and how the system ing the QMS.