NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- Published by the NEW ZEALAND CONSERVATION AUTHORITY TE POU ATAWHAI TAIAO O AOTEAROA P O Box 10-420 WELLINGTON New Zealand 1997 ISBN 0-9583301-6-6 NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- INTRODUCTION This is the full version of the New Zealand Conservation Authority’s Interim Report and Discussion Paper. A shorter summary version is also available, from: -- the NZCA, P O Box 10-420, Wellington, or -- your local office of the Department of Conservation. These two papers are the results thus far of an ongoing process of discussion and debate on the issue of Maori customary use of native plants and animals. The NZCA has addressed the issue through the activities of a Working Group, and the intensive debate arising from its first discussion paper in 1994. Other processes and developments have also focussed attention on the use and management of New Zealand’s indigenous natural heritage, including the WAI 262 claim to the Waitangi Tribunal, controversy over access to and disposal of dead stranded whales, and the recent Court decision on Maori fishing rights. Like the 1994 paper, this Interim Report and Discussion Paper is neither a policy nor a proposal for policy. It is not a statement of any fixed or final position of the NZCA on this issue. It does not claim to be the complete answer, or any absolute definition of Maori customary use. It is an Interim Report, an update on the NZCA’s investigation thus far. It is also a Discussion Paper, traversing some of the various aspects of the issue and the practical meaning of Maori customary use in the late 1990s, and exploring the cultural and historical background to gain a better understanding of New Zealanders’ beliefs, values and expectations of indigenous wildlife and plants. There is a wide spectrum of values and concerns, and a wide variety of information in this Interim Report and Discussion Paper. Where there are differing or conflicting ideas or arguments on a particular matter, each is given space. The paper does arrive at some interim recommendations on specific points, where the evidence of the NZCA’s investigations suggests a clear and practically achievable way ahead. These interim recommendations are put forward in the hope that they may assist in making progress, and provide a useful resource for the ongoing debate. NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- Some Key Issues: -- the fact that New Zealand’s indigenous flora and fauna are severely diminished and in continuing decline; -- the principles of the Treaty of Waitangi which, under law, must be given effect in conservation policy and management; -- balancing the Treaty’s guarantees of rangatiratanga and kawanatanga, to recognise and provide for the respective rights and duties of iwi Maori and the Crown; -- the provisions of international agreements, in particular the Convention on Biological Diversity; -- New Zealand’s existing legal provisions for access to natural resources; -- the WAI 262 claim to the Waitangi Tribunal; -- the Department of Conservation’s management and decision-making systems; -- the Fish and Game Council’s management of introduced sportsfish and gamebirds and their habitats; -- New Zealanders’ different traditions, values and beliefs, and concepts of the relationships between humans and the natural world; -- the cultural significance to Maori of customary uses of native plants, animals and other traditional materials; -- the concept of sustainability; -- research requirements for conservation; -- recognising and benefiting from different kinds of knowledge; -- protecting Maori intellectual and cultural property rights; -- access and ownership; -- funding and administration. There is alot of common ground. There is wide support for the conservation of New Zealand’s indigenous wild plants and animals -- both Maori and non-Maori want future generations to be able still to enjoy this heritage. There is agreement that some plants and some materials from dead animals may be used. There is strong opposition to poaching and any uncontrolled harvesting which causes damage to vulnerable populations and habitats. And many New Zealanders are strongly determined to take an active part in conservation, to have their say, and to have their views and priorities taken into account. The NZCA offers this Interim Report and Discussion Paper as a contribution to the ongoing discussion. Ecological terms and Maori words used are listed in the Glossary on page 169. The Treaty of Waitangi -- the English and Maori texts, and the Kawharu literal translation of the Maori text -- is given at page 177. NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- Page 1 1 BACKGROUND 1 1.1 The NZCA 1 1.2 The Issue 2 1.3 The 1994 Discussion Paper 3 1.4 Consultation and Discussion 4 1.5 This Second Discussion Document 4 1.6 The Boundaries of this Initiative 7 2 THE DEBATE THROUGH 1994 AND 1995 7 2.1 THE RESPONSES 8 2.1.1 Approval and Opposition 9 2.1.2 Polarised Positions and Common Ground 11 2.2 CONCERNS AND PRIORITIES 11 2.2.1 A Scale of Values 11 2.2.2 Rongoa Plants 11 2.2.3 Icon Species 12 2.2.4 The Worst-case Scenario 12 2.2.5 Statutory Controls 12 2.2.6 Maori Participation in Management 12 2.2.7 A Local Focus 13 2.2.8 Traditional Knowledge 14 2.2.9 Intellectual Property Rights 14 2.2.10 Science and Management 15 2.2.11 Significance 15 2.2.12 The Treaty of Waitangi 16 2.2.13 International Obligations 16 2.2.14 Definition and Understanding 16 2.2.15 Non-Maori Requirements 16 2.2.16 Substitution of Other Materials 16 2.2.17 Land Status 17 2.2.18 Administration and Funding 17 2.2.19 The Discussion Paper and Process 19 3 THE PRESENT SITUATION 19 3.1 THE LEGISLATION 19 3.1.1 Legislation and Purpose 20 3.1.2 The Treaty and the Legislation 22 3.1.3 The Wildlife Act 24 3.1.4 The Marine Mammals Protection Act 25 3.1.5 The Conservation Act 26 3.1.6 Conservation Management Strategies 27 3.1.7 The National Parks Act 29 3.1.8 The Reserves Act 29 3.1.9 The Native Plants Protection Act 31 3.2 CURRENT DEPARTMENTAL PROCEDURES 31 3.2.1 Regional Decision-Making 31 3.2.2 Advisory Committees 32 3.2.3 Referral to Iwi 33 3.2.4 Management by the Conservancy NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- Page 33 3.2.5 Materials and Resources Currently Sought by Maori 34 3.2.6 Practical Necessities 35 3.2.7 Diversity and Consistency 35 3.2.8 The Head Office Role 36 3.2.9 Freshwater Fisheries 39 3.3 THE TREATY OF WAITANGI 39 3.3.1 National Foundations 39 3.3.2 A Developing Social Contract 40 3.3.3 Tino Rangatiratanga 41 3.3.4 Kawanatanga 42 3.3.5 A Balance between Rangatiratanga and Kawanatanga 43 3.3.6 The Principles of the Treaty 44 3.3.7 Active Protection of the Maori Interest 46 3.3.8 Tikanga Maori 47 3.3.9 Community Interests 48 3.3.10 The Maori Interest 49 3.3.11 Urban Maori 50 3.3.12 Freshwater Fisheries 53 3.4 WAI 262 53 3.4.1 The Claim 54 3.4.2 Management and Ownership 55 3.4.3 Other Tribunal Claims 57 3.5 INTELLECTUAL, CULTURAL AND GENETIC PROPERTY RIGHTS 57 3.5.1 Protecting Knowledge and Rights 58 3.5.2 The Potentials of Biodiversity 58 3.5.3 New Zealand Provisions 59 3.5.4 Different Kinds of Knowledge 60 3.5.5 The Mataatua Declaration 63 3.6 INTERNATIONAL AGREEMENTS 63 3.6.1 Introductory Comments 63 3.6.2 The Convention on Biological Diversity 66 3.6.3 Agenda 21 67 3.6.4 The Rio Declaration 67 3.6.5 CITES 68 3.6.6 IUCN Declarations 68 3.6.7 The Draft Declaration on the Rights of Indigenous Peoples 69 3.6.8 The International Convention for the Regulation of Whaling 71 3.7 NEW ZEALAND’S BIODIVERSITY 71 3.7.1 A Diminished Heritage 72 3.7.2 Pre-European Experience and Impacts 75 3.7.3 The Last 160 Years’ Experience and Impacts 78 3.7.4 Unlawful Poaching 81 4 CULTURAL BACKGROUND 81 General Comments 83 4.1 WHAT CUSTOMARY USE MEANS TO MAORI 83 4.1.1 Introductory Comments NEW ZEALAND CONSERVATION AUTHORITY -- TE POU ATAWHAI TAIAO O AOTEAROA MAORI CUSTOMARY USE OF NATIVE BIRDS, PLANTS & OTHER TRADITIONAL MATERIALS ------------------------------------------------------------------------- INTERIM REPORT AND DISCUSSION PAPER -------------------------------------------------------------------------- Page 84 4.1.2