SNAPPER (SNA1) MANAGEMENT PLAN

Transcription

1 SNAPPER (SNA1) MANAGEMENT PLAN Prepared by the SNA1 Strategy Grup with assistance frm the Ministry fr Primary Industries 2016 Mai i Te Hiku Te Ika ki Te Tai Rawhiti Ka huhua ra Tangara Ka ra te Tangata Frm Nrth Cape t East Cape an abundant marine life will sustain us

2 Disclaimer While every effrt has been made t ensure the infrmatin in this publicatin is accurate, the SNA1 Strategy Grup des nt accept any respnsibility r liability fr errr f fact, missin, interpretatin r pinin that may be present, nr fr the cnsequences f any decisins based n this infrmatin. ISBN N: (nline) ISBN N: (print) 2016 Snapper (SNA1) Management Plan 1

3 CONTENTS Glssary 3 Summary f the SNA1 Strategy Grup s Recmmendatins 6 Intrductin 11 Purpse and cnstructin f the Plan 13 Bimass target and timeframe 16 Overview 16 Management measures that will supprt the target being achieved 19 Utilisatin f the SNA1 resurce 23 Overview 23 Setting Allwances dividing up the catch limit 23 Managing each user grup within the share prvided 25 Rules that manage the use f the SNA1 resurce 25 Envirnmental cnsideratins 27 Overview 27 Habitat Degradatin and Lss 27 Addressing land-based effects n snapper habitats 28 Prtected Species Interactins 29 Mnitring and research 30 Overview 30 Implementing the Plan 33 Overview 33 Establishing an advisry grup 34 Cmmunicatin and educatin 36 Overview 36 Appendix A Minister s full determinatin Appendix B Grup members, alternates, and advisrs 47 Grup members 47 Advisrs 47 Appendix C Distinctin between stchastic stck assessment mdelling and deterministic Yield-Per-Recruit mdelling 48 Appendix D Summary f Yield-Per-Recruit and Prjectin Mdelling Results 49 Snapper (SNA1) Management Plan 2

4 Glssary Annual Catch Entitlement (ACE) Assciated r dependent species Aquatic envirnment Benthic Benthic impact Bilgical diversity Bimass B 0 (unfished r virgin bimass) B MSY Bycatch Carrying capacity Catch per unit f effrt (CPUE) Ensuring sustainability Explitatin rate Fisheries Management Area (FMA) Fisheries resurces Allcatin f the TACC fr a given fishing year. ACE is initially distributed prprtinally amngst quta wners, based n number f quta shares held. ACE can als be traded and transferred. Any nn-harvested species taken r therwise affected by the taking f any harvested species. The natural and bilgical resurces cmprising any aquatic ecsystem, including aquatic life. These envirnments can include ceans, seas, castal areas, inter-tidal areas, estuaries, rivers, lakes and ther places. Relating t the seaflr. The amunt f seaflr impacted by fishing methds. The variability amng living rganisms, including diversity within species, between species, and f ecsystems. The size f a stck in units f weight. Generally, the average bimass ver recent years that wuld have ccurred if the stck had never been fished. B MSY is the bimass (ttal weight f fish) that can supprt the harvesting f the maximum sustainable yield. In mre frmal terms it is defined as the average stck bimass (r size) that results frm taking an average catch f maximum sustainable yield under varius types f harvest strategies. Refers t fish species, r size classes f thse species, caught in assciatin with key target species. The average stck size expected in the absence f fishing. Even withut fishing, the stck size varies thrugh time in respnse t envirnmental cnditins. The quantity f fish caught with ne standard unit f fishing effrt; e.g. the number f fish taken per 1000 hks per day, r the weight f fish taken per hur f trawling. CPUE is ften assumed t be an index f relative abundance. Maintaining the ptential f fisheries resurces t meet the reasnably freseeable needs f future generatins and aviding, remedying r mitigating any adverse effects f fishing n the aquatic envirnment. The prprtin f the recruited, r equivalently, the vulnerable, bimass that is caught during a certain perid, usually a fishing year. New Zealand fisheries waters (the 200 nautical mile Exclusive Ecnmic Zne (EEZ), Territrial and internal waters) are divided int ten FMAs. These FMAs als infrm the bundaries f mst Quta Management Areas (QMAs). Any ne r mre stcks r species f fish, aquatic life r seaweed. Snapper (SNA1) Management Plan 3

5 Fishing mrtality Fish stck r Stck Habitat Hard limit Harvest strategy Harvest Strategy Standard (HSS) Input cntrls Kaitiakitanga Maximum Sustainable Yield (MSY) Minimum legal size (MLS) Mdel Natural mrtality Output cntrls Pataka kai Prtected species That part f the ttal mrtality rate applying t a fish stck that is caused by fishing. Any fish, aquatic life r seaweed f ne r mre species that are treated as a unit fr the purpse f fisheries management. Includes all aspects f the aquatic envirnment which fisheries resurces depend n directly r indirectly in rder t carry n their life prcesses. A specified bimass (r prxy) reference level belw which a fishery shuld be cnsidered fr clsure. Identifies target, sft, and hard bimass reference pints, and management actins assciated with achieving the target and aviding the limits. The Harvest Strategy Standard is a plicy statement f best practice in relatin t the setting f fishery and stck targets and limits fr fish stcks in New Zealand s Quta Management System. Cntrls n fishing effrt, fr example n hw, when and where peple can take fisheries resurces. The exercise f guardianship and, in relatin t any fisheries resurces, includes the ethic f stewardship based n the nature f the resurces, as exercised by the apprpriate tangata whenua in accrdance with tikanga Māri. MSY is the largest average amunt f fish that can be remved frm a stck each year, while still leaving enugh fish t prduce new generatins. MSY is defined in the Fisheries Act 1996 as: In relatin t any stck, means the greatest yield that can be achieved ver time while maintaining the stck's prductive capacity, having regard t the ppulatin dynamics f the stck and any envirnmental factrs that influence the stck. Fish abve the MLS may be retained while thse belw it must be returned t the sea. A set f equatins that represents the ppulatin dynamics f a fish stck. That part f the ttal mrtality rate applying t a fish stck that is caused by predatin and ther natural events. Direct cntrls n the quantity f fish harvested. A Māri strehuse in which fd is kept fr later use. The term is als used t dente arrangements made by kaitiaki (guardians) t harvest and prvide seafd fr custmary use (tangi and hui). As defined in the Wildlife Act 1953 and the Marine Mammals Prtectin Act 1978, including all NZ seabirds, all marine mammals, sme marine reptiles, black cral, sme red crals, giant and blacksptted gruper, deepwater nurse, whale, and white-pinter sharks, manta rays, and spinetail devil rays. Snapper (SNA1) Management Plan 4

6 Quta Quta Management Area (QMA) Quta Management System (QMS) Recruited bimass Recruitment Sft limit Stck status Sustainability measures Target bimass Ttal Allwable Catch (TAC) Ttal Allwable Cmmercial Catch (TACC) Utilisatin Yield Yield per Recruit (YPR) Individual transferable quta has qualities f a prperty right and is used t prprtinally allcate the TACC. Each QMS stck has 100,000,000 tradable quta shares that determine the allcatin f ACE amngst quta wners. The spatial bundaries fr each QMS stck. These bundaries are aligned with FMAs, either directly r as a part r cmbinatin f FMA bundaries. The system f fisheries management fr the main harvest species in New Zealand which includes the requirement t set a TAC, make allwances fr custmary Māri interests, recreatinal interests and fishing-related mrtality, and set a TACC. That prtin f a stck s bimass that is available t the fishery; i.e. able t be caught by the gear; als called explitable r vulnerable bimass. The additin f new individuals t the fished cmpnent f a stck. This is determined by the size and age at which fish are first caught. A specified bimass (r prxy) level that triggers a requirement fr a frmal, time cnstrained rebuilding plan. A determinatin made abut the current cnditin f the stck n the basis f stck assessment results. Any measure r actin taken fr the purpse f ensuring sustainability. Generally a bimass (r prxy) level that management actins are designed t achieve with at least 50% prbability. Targets may als be expressed in terms f fishing mrtality r explitatin rates. The ttal quantity f fishing-related mrtality allwed fr a QMS stck in a given fishing year. The ttal quantity f cmmercial catch allwed fr a QMS stck in a given fishing year. Cnserving, using, enhancing and develping fisheries resurces t enable peple t prvide fr their scial, ecnmic and cultural wellbeing. Catch expressed in terms f weight. Is the expected lifetime yield fr the average recruit. Fr a given explitatin pattern, rate f grwth, and natural mrtality, an equilibrium value f YPR can be calculated fr each level f fishing mrtality. YPR analyses are used t cmpare the effects f changing explitatin rates and the average size r age f fish at first capture n yields frm a fishery. The results can help managers decide n fisheries cntrls such as minimum fish sizes and cmplementary fishing gear cntrls such as net mesh sizes. Snapper (SNA1) Management Plan 5

7 Summary f the SNA1 Strategy Grup s Recmmendatins The Snapper 1 fishery ( SNA1 ) is a valuable resurce, fished by custmary, recreatinal, and cmmercial fishers. Managed sustainably, SNA1 will cntinue t prvide benefits fr the natin. Managing the SNA1 fishery t ensure cntinued benefits nw and in the future presents a number f challenges. All interested parties shuld wrk tgether t find slutins t the prblems. T ensure the fishery can best prvide fr the interests f all in the lng term, there is a need fr an increase in the bimass f the snapper ppulatin t the level that will prvide fr the reasnably freseeable needs f future generatins, imprvements in fishing practices, minimisatin f waste, and a requirement t deal with any adverse effects f fishing n the aquatic envirnment, n prtected species, and n ther finfish species cmmnly caught. Critical t ensuring the nging health f the fishery, is prtecting the aquatic envirnment upn which snapper prductivity depends frm adverse effects, including thse arising frm land use and develpment. It will be imprtant t imprve understanding f the envirnmental factrs that impact n snapper, and t ensure that all whse activities interact with the snapper fishery are invlved in minimising risks t the envirnment. Managing the snapper fishery will require the rutine cllectin f useful, unbiased, and reliable infrmatin n the fishery, the effects n the envirnment, and any effects f a changing envirnment n snapper. In September 2013, the Minister fr Primary Industries ( the Minister ) the Hn Nathan Guy, decided n new management measures fr SNA1. Acknwledging the reactin by fishers t his decisins, and recgnising the challenges psed fr managing the fishery, the Minister frmed a representative grup t develp a strategy fr managing the SNA1 fishery. This SNA1 Strategy Grup ( the Grup ) has develped this Management Plan t make a psitive imprvement t the fishery and its management. This Plan dcument prvides backgrund t the SNA1 fishery, the available fisheries management measures, and utlines the Grup s discussins and recmmendatins fr managing the SNA1 fishery. The Grup s recmmendatins are summarised in Table 1 belw. Snapper (SNA1) Management Plan 6

8 Plan paragraph Table 1. Summary f recmmendatins SNA1 Management Plan Descriptin Actin required Cmpleted Respnsibility t act (MPI, by (if nt cmmercial, recreatinal, Māri stated then custmary nn-cmmercial, ther t be agencies) determined by pririty) MPI, Other agencies cmmercial, recreatinal, Māri custmary nncmmercial Bimass target and timeframe 37 The SNA1 QMA nt be sub-divided at this time, but the three sub-ppulatins (East Nrthland, Hauraki Gulf, Bay f Plenty) shuld be mnitred and assessed separately. 37 Bimass target f 40% unfished level be achieved within 25 years. 37 The bimass target may be reviewed at any time the HSS is reviewed r the SNA1 TAC is reviewed. 37 An intermediate milestne f 30% f the unfished bimass level be achieved within 10 years (by 2025) as a valuable checkpint fr prgress twards the 40% target. Plan t Minister by 31/10/2016 fr his final apprval Plan t Minister by 31/10/2016 fr his final apprval Plan t Minister by 31/10/2016 fr his final apprval Plan t Minister by 31/10/2016 fr his final apprval 43 N reductin f the TAC be made in 2016/17. MPI 43 By , a review be cnducted using updated stck assessment infrmatin, and the results be used by the prpsed advisry grup t recmmend subsequent management actin, including a TAC change, if required t achieve the intermediate milestne and bimass target within the specified timeframe. New infrmatin and cnsequent management review 49 Over time, the MLS be aligned fr cmmercial and recreatinal fishers. Increasing the MLS nly becmes an ptin when selectivity has been measured and survivrship f released fish is reliably estimated. 49 Include PSH and ther technlgy in cmmercial trawl gear and innvatins in ther fishing gear, if it reduces mrtality f small snapper. 49 Educate and encurage nn-cmmercial fishers t use apprpriate baited hk sizes, artificial lures, and ther innvatins that catch fewer small snapper. 54 All fishers be encuraged t avid catching juvenile fish wherever pssible. 54 Research be undertaken t determine the survival f snapper released by cmmercial and recreatinal fishing methds. 54 Best-practice snapper handling and release methds be updated. 54 All fishers be infrmed and encuraged t adpt best practice methds fr handling and releasing snapper. 54 SNA1 Cmmercial be asked t review the 2015 vluntary mve-n measure t align with the best available infrmatin. 54 Recreatinal fisher grups be encuraged t develp a 'mve n' practice as part f a package f measures t reduce incidental catch f snapper belw the MLS. Selectivity research, Survivrship research, Gear mdificatin , but regular fishery mnitring will ensure stck n track t meet target & timeframe nging MPI MPI MPI MPI MPI and all invlved in tagging prgramme MPI, cmmercial, recreatinal Gear mdificatin nging MPI, cmmercial Gear mdificatin nging MPI, recreatinal, custmary Change the way we nging All fish Research prgrammes Publish guide Educatin nging All Mnitr and analyse Educatin MPI, cmmercial, recreatinal All MPI, cmmercial MPI, recreatinal Snapper (SNA1) Management Plan 7

9 Utilisatin f the SNA1 resurce 65 Regular mnitring and analysis f the levels f catch by all sectrs and estimates f ther surces f fishing-related mrtality be required. 65 Reprting f snapper by amateur fishing charter vessels n their Activity Catch Return frms. 65 Māri custmary nn-cmmercial catch reprting estimates be imprved including thrugh Crwn assisting iwi t use electrnic reprting. 65 Develp a clear set f guidelines fr the required precisin and timing f updates t infrm the regular mnitring and analysis f all catch and ther surces f fishing-related mrtality. 65 If, as a result f mnitring, the Grup detects trends that indicate targets and timeframes will nt be achieved, then take apprpriate actin. 78 Habitats f particular significance fr snapper be identified, mapped, areas under threat identified, as well as the lss f habitat be estimated, in Analysis f the trawl ftprint be reprted (using the vessel mnitring system (VMS) infrmatin. 78 Examine perfrmance f existing prtectin measures and areas and cnsider alternatives if they wuld be mre effective, including analysis f size cmpsitin f snapper frm bserver data (t be reprted in 2017). 78 Encurage fishers t find and adpt fishing gear and methds that reduce adverse effects n the benthic envirnment by The existence and implicatins f habitat bttlenecks fr snapper be assessed. 78 Prvide annual updates n the effects f climate change and cean acidificatin and cmment n relevance t snapper in SNA1. 78 Opprtunities t enhance seabed habitat imprtant t the lifecycle f snapper be explred (in cnjunctin with lcal authrities); Mussel restratin? 78 Supprt prgrammes targeted at recvery f bigenic structures in SNA1, including updates frm Mussel Reef Restratin Trust. 80 Pathways be established fr engagement between MPI and lcal authrities n fisheries and envirnmental impacts. MPI t reprt. 80 Highlight the imprtance f castal marine envirnments and snapper habitat t fisheries management, t lcal and reginal authrities. 80 Lcal authrities be required t mnitr and reprt n sediment and nutrient levels in castal marine area and t adpt mitigatin and restratin strategies. Mnitr and analyse all catch and mrtality Mnitr and analyse all catch and mrtality Mnitr and analyse all catch and mrtality Develp a set f mnitring guidelines Mnitr and analyse all catch and mrtality Envirnmental cnsideratins Research prgramme Define trawl ftprint Research prgramme Research prgrammes Research prgrammes Research prgrammes Research prgrammes Liaisn and resurces Liaisn and reprting Liaisn and reprting Liaisn and reprting Mnitring and research All MPI, recreatinal MPI, custmary All MPI 2017 MPI 2017 MPI MPI, cmmercial 2018 MPI, cmmercial, recreatinal MPI MPI MPI MPI MPI MPI MPI Advisry Grup Lcal authrities Lcal authrities Lcal authrities Lcal authrities Lcal authrities 91 Test, using management strategy evaluatin (MSE), different data cllectin and management ptins and assciated risks t help define management and mnitring strategies. 91 Secure additinal and dedicated funding frm a range f surces fr designing and implementing new r augmented data gathering, mnitring, and research activities as specified in the Plan. 91 Explre ptins fr mnitring relative abundance including a fisheries-independent survey using cmmercial bttm lngline gear; cmpare with Research prgramme Mnitring and Research prgramme Mnitring and Research prgramme MPI MPI 30/06/2017 MPI Snapper (SNA1) Management Plan 8

10 ther ptins such as trickle tagging; explre ptins fr making quta r ACE available fr related research. 91 Sample cmmercial landings r catch at sea t cllect tliths fr ageing f snapper subject t apprpriate sampling frequency. 91 Update the full natinal panel survey (NPS) t estimate recreatinal harvest every 5 years. 91 Prvide an intermediate recreatinal harvest update between NPS estimates. 91 Cmplete aerial verflight survey and bat ramp survey fr SNA1 cincident with next NPS. 91 Maintain recreatinal effrt mnitring using web cameras at key ramps and evaluate validity peridically. 91 Survey recreatinal catches at key ramps t maintain ability t scale effrt t catch. 91 Mnitr return f undersized snapper by amateur and cmmercial fishers. 91 Reprting f recreatinal snapper catch n charter vessels. 91 Investigate ptins fr updating the estimate f abslute abundance using an apprpriate and csteffective survey, including a tagging bimass survey design t prvide infrmatin abut bimass and mvement between sub areas r applying the results frm an nging trickle tagging prgramme, if implemented. 91 Cnduct a quantitative stck assessment at least every 5 years t estimate stck status and assess the effectiveness f management measures, including the TAC. 91 Imprve reprting f Māri custmary nncmmercial harvest. 91 Imprve understanding f ttal mrtality by all fishing methds. 91 Imprve understanding f survival rates f released snapper. Cnsider if new survival study required. Research prgramme Research prgramme Research prgramme Research prgramme Research prgramme Research prgramme Mnitring and Research prgramme Mnitring and analysis Research prgramme Research prgramme Mnitring and analysis Research prgramme Research prgramme As part f tagging prject MPI, cmmercial MPI, recreatinal MPI, recreatinal MPI, recreatinal MPI, recreatinal MPI, recreatinal MPI, cmmercial, recreatinal MPI, recreatinal 30/06/2017 MPI, cmmercial, recreatinal MPI 2018 MPI 2018 MPI MPI, custmary 91 Develp and update best practice fish handling and release methds. 91 Define and identify habitats f particular significance fr fisheries management in SNA1. 91 Investigate perfrmance f existing methd and area measures (especially fr trawling) and explre ptins t imprve perfrmance. 91 Mnitr implicatins f climate change fr SNA1. Research prgrammes 91 Investigate ways t mnitr the perfrmance f educatin and cmmunicatin initiatives. 99 Maintain the SNA1 Management Plan as a living dcument. 99 Encurage, mnitr, and reprt n the implementatin f the recmmendatins made in the Plan. 99 Prvide regular updated infrmatin t public and annual reprt shwing trends, new infrmatin, and management pririties. 99 Engage with sectrs, via the representatives, t arrive at cnsensus n prpsed management ptins befre frmal cnsultatin. Publish guide 30/06/2017 MPI, cmmercial, recreatinal Research 2017 MPI prgramme Research MPI prgramme Research prgrammes Implementing the Plan Analysis and reprting Analysis and reprting Analysis and reprting MPI MPI Annually MPI Advisry Grup Annually MPI Advisry Grup As required MPI Advisry Grup Cnsultatin As required MPI Advisry Grup Snapper (SNA1) Management Plan 9

11 99 Assist MPI in cmmunicating management ptins and decisins and the reasns fr them t stakehlders and the public. 99 Advise MPI and Minister n annual planning and priritisatin f research, cmpliance, and ther services. 99 Advise MPI and Minister n setting TAC, TACC, Allwances. 99 Advise MPI and Minister n supprting measures such as spatial cntrls, gear cntrls, MLS, and bag limits. 99 Advise MPI and Minister n mnitring tls t track Plan perfrmance. 99 Advise MPI and Minister n Plan review and develpments. 99 Prvide advice and recmmendatins t relevant management agencies and Ministers n achieving the purpse f the Plan. 100 SNA1 Advisry Grup membership: 3 frm each sectr, 3 MPI and ne public member. Seek nminatins. 100 SNA1 Advisry Grup member tenure: up t 3 year term, max 2 cnsecutive terms. Members appinted by Minister. 100 SNA1 Advisry Grup review: review structure, functin and perfrmance after 5 years. Cnsultatin As required MPI Advisry Grup Planning and pririty setting Management review Management review Planning and pririty setting Planning and pririty setting Management review Plan t Minister by 31/10/2016 fr his final apprval Plan t Minister by 31/10/2016 fr his final apprval Planning and pririty setting As required MPI Advisry Grup As required MPI Advisry Grup As required MPI Advisry Grup As required MPI Advisry Grup As required MPI Advisry Grup As required MPI Advisry Grup MPI MPI 100 SNA1 Advisry Grup meetings: 1 4 meetings per Meetings Annually MPI annum. 100 SNA1 Advisry Grup csts: MPI facilitate Grup Find budget Annually MPI functins, need specific budget frm MPI. 100 SNA1 Advisry Grup cmmunicatins: Annual reprt fr the Minister, ther reprts fr public use as required. Analysis and Reprting Annually MPI Cmmunicatin and Educatin 107 The plan be prmted t fishers frm all sectrs, the general public, gvernment agencies including lcal gvernment, and ther Ministers 107 Imprve prcesses t engage with and receive input frm interested parties, t enable early input prir t release f cnsultatin dcuments. 107 The recmmended actins fr infrming and educating interested parties be undertaken by MPI within its brader cmmunicatins strategy. 107 Fishers in all sectrs are prvided with educatinal material abut sustainable fishing practices and their benefits. 107 The advisry grup s rle shuld include develping and disseminating an annual reprt n prgress under the plan (see 100), using the best infrmatin available and ensuring that all relevant infrmatin used fr managing SNA1 is made publicly available. Liaisn and reprting Develp engagement prtcls Liaisn and reprting Liaisn and reprting Analysis and reprting Awaiting Ministerial apprval Snapper (SNA1) Management Plan 10

12 Intrductin 1. The snapper r tamure (Pagrus auratus) is the majr inshre finfish species f nrthern New Zealand. Snapper are imprtant t all fishing sectrs. The species is a tanga r treasure fr Māri, an imprtant and valuable fd surce caught and marketed by cmmercial fishers, and a highly prized catch fr recreatinal fishers. 2. In the inshre waters f the Snapper 1 fishery ( SNA1 ) (Figure 1), snapper is the dminant finfish species and a key cmpnent f the ecsystem. Figure 1. Quta management area (QMA) fr SNA1 and bundaries fr the three sub-stcks within SNA 1: East Nrthland, Hauraki Gulf, and Bay f Plenty. 3. The SNA1 area prvides preferred habitats fr snapper and supprts prductive stcks f the species. The SNA1 stck cmprises three sub-stcks East Nrthland, Hauraki Gulf, and the Bay f Plenty. The castline thrugh SNA1 is characterised by estuaries, inlets, bays, islands, and ften sheltered waters, making fishing access easy. Mrever, much f the area is within easy reach f New Zealand s largest city, Auckland, and is accessible t that half f the cuntry s ppulatin which resides nrth f Taup. 4. As the ppulatin adjining the SNA1 area increases, the SNA1 stck is expected t face greater pressure frm fishing, and als frm adverse effects n inshre envirnments imprtant fr snapper. The management challenges extend beynd what can be directly cntrlled by fisheries management tls. Agencies with respnsibilities fr managing land Snapper (SNA1) Management Plan 11

13 use and run-ff int castal waters need t ensure that the habitats imprtant fr snapper and ther inshre finfish species are imprved. 5. The management f the SNA1 fishery was reviewed in 2013, and sme f the Minister s prpsed management measures prduced adverse reactin frm fishers. Cncerns were raised abut the impact f sme prpsed measures n nn-cmmercial fishers, and abut the impacts frm waste caused by sme cmmercial fishing methds. 6. As part f his 2013 determinatin (Appendix A), the Minister established the SNA1 Strategy Grup ( the Grup ). There has been a previus attempt at a management plan fr SNA1, in 1994, but it was nt successful. Since then there has been little dialgue directly between cmmercial and recreatinal interests in this fishery. T address this, a cre aim f the Grup was t prvide a frum fr the diverse fishery interests t cllabrate with a view t prviding advice and recmmendatins t the Minister n the future management f SNA1. The fcus f the Grup was nt t review the Minister s 2013 determinatin, but t develp a plan fr the future management f SNA1. 7. The Grup has met regularly, cmmencing n 11 February In ttal, the Grup met 25 times, hlding its final meeting n 8 December Officials frm the Ministry fr Primary Industries ( MPI ) have assisted the Grup thrughut its deliberatins and have prvided further clarificatin n varius matters, including: The need fr and appraches t determining a target bimass level fr SNA1; The timeframe t build t the target bimass; Measures t imprve the prductivity f the SNA1 stcks and the management f the fishery. 9. The Hnurable Sir Ian Barker QC, was appinted by the Minister as independent chair. The Grup included three representatives frm each f the cmmercial, recreatinal, and custmary nn-cmmercial sectrs. Representatives als had alternates. Officials frm MPI and NIWA scientists supprted the Grup with administrative services, scientific and envirnmental advice, and infrmatin. A list f Grup members and alternates, as well as the fficials and scientists wh prvided expert advice t the Grup, is prvided in Appendix B. 10. The Minister s 2013 determinatin sets ut the main tasks fr the Grup as fllws: Determining what getting the best frm SNA1 means acrss all sectrs; Hw the fishery shuld be managed t get the best utcmes; What cst-effective research shuld be carried ut in the fishery and hw ften; Cnsidering hw benefits shuld be allcated in the fishery within the bunds f the directin prvided by the Minister; Cnsidering the need fr, and the csts/benefits assciated with, measures t prtect spawning snapper and habitats imprtant fr snapper; Cnsidering whether SNA1 shuld be split int different management areas. 11. This Plan represents the cmbined views f the Grup. Where views culd nt be recnciled, the different perspectives are nted. Recmmendatins are made nly n matters n which the Grup reached agreement. Snapper (SNA1) Management Plan 12

14 Purpse and cnstructin f the Plan 12. The purpse f the Plan is t articulate the Grup s recmmendatins t the Minister n the prpsed framewrk fr managing the SNA1 fishery. The Plan als prvides backgrund infrmatin t assist readers t understand the legal bligatins, available fisheries management measures, and strategies fr achieving the aims f the Plan. 13. The verall aim f the Plan, as directed by the Minister, is t enable all fishing sectrs (Māri custmary nn-cmmercial, recreatinal, and cmmercial) t enjy the nging benefits f the SNA1 fishery. There is an pprtunity t imprve thse benefits thrugh greater stck abundance, brader size and age diversity in the snapper ppulatins, minimising the mrtality f undersized and returned snapper, and ensuring that the envirnment and habitats fr snapper are maintained in a prductive state. 14. The Plan is cnstructed t perate within the legal framewrk prvided by the Fisheries Act 1996 ( the Act ) and assciated statutry Regulatins. The cre principles under the Act are: Sectin 13 - Limiting catch thrugh the ttal allwable catch ( TAC ) t maintain stcks at r abve the bimass level that prduces the maximum sustainable yield (abbreviated as the B MSY). The Minister has the discretin (within guidelines influenced by bilgical, scial, cultural, and ecnmic factrs) t determine a stck-management target, a timeframe fr achieving the target, and a TAC t deliver the target stck size within the specified time. Sectin 9 - Taking int accunt the envirnmental principles in decisins s that The viability f nn-harvested species is maintained; Bidiversity is maintained; Habitats f particular significance fr fisheries management are prtected. Sectin 10 - Taking int accunt the infrmatin principles in decisins s that The best available infrmatin is used; The uncertainty in the infrmatin is cnsidered; The decisin-maker is cautius if infrmatin is unreliable, uncertain, r inadequate; The absence f, r uncertainty in, any infrmatin is nt used as a reasn fr pstpning r failing t take any measure t achieve the purpse f the Act. Sectin 21 - Apprtining the TAC between sectrs by making Allwances within the TAC fr the interests f Māri custmary nn-cmmercial fishing; Recreatinal fishing; All ther surces f fishing-related mrtality; and Setting the ttal allwable cmmercial catch ( TACC ). Sectins 11, 297, Setting supprting management measures under the Regulatins, including The minimum legal size ( MLS ); Fishing methd cntrls (net mesh sizes, hk numbers and sizes) in supprt f the MLS; Snapper (SNA1) Management Plan 13

15 Area cntrls (clsed seasns, methd restrictins) in supprt f the MLS and ther aims; Daily bag limits fr recreatinal fishers; Prviding fr custmary nn-cmmercial harvesting and catch recrding. 15. The available legal framewrk prvides fr the Minister t exercise discretin after cnsidering the different views and aspiratins f the fishing sectrs which bring different views n hw the Minister shuld exercise his r her discretin. Despite different perspectives and aims, all sectrs are required t perate within the cnstraints f the law. 16. The cmmercial sectr needs t cnduct fishing n an ecnmically viable basis and cmply with the requirements t reprt fishing activity and catch. Reprting prvides infrmatin t supprt fisheries management and the integrity f the quta management system ( QMS ). Cmmercial fishing is als subjected t increasing public scrutiny and expectatins f bestpractice peratins. Cmmercial fishing prvides fish fr dmestic markets, including restaurants, htels, fishmngers, and supermarkets catering fr peple wh are nt recreatinal fishers. The cmmercial catch f snapper frm SNA1 supprts valuable exprts t verseas markets. Exprt trade and the emplyment pprtunities prvided by cmmercial fishing cntribute t the general ecnmic and scial gd f the cuntry. The Grup nted that the cmmercial fishing industry intends t seek internatinal sustainability accreditatin fr the SNA1 fishery. 17. Recreatinal fishing is an imprtant leisure activity fr many, and generates substantial ecnmic benefits. In 2014 recreatinal fishing rated as the fifth mst ppular leisure activity fr adult New Zealanders 1. Recreatinal fishing is recgnised under the Act and is ften pursued as a surce f fd, pleasure, and scial wellbeing cmmnly all three. The scial and ecnmic cntributins frm the SNA1 recreatinal fishery are difficult t quantify. Hwever, it is clear that the SNA1 recreatinal fishery is ecnmically valuable and f great imprtance t a large number f industries, as well as t fishers and residents in the mst ppulus regin f the cuntry. 18. Māri Custmary nn-cmmercial fishing and access t seafd fr custmary use is highly valued by Māri fr maintaining their cultural practices. The Act, the Amateur Fishing Regulatins and specific Māri Custmary Fishing Regulatins recgnise and prvide fr custmary fd gathering and the special relatinship between tangata whenua and thse places which are f imprtance fr custmary fd gathering. 19. The recmmended Management Plan has explred the different sectr interests and tried t cater fr them all, t the extent pssible and practicable within the existing statutry prvisins. The Grup has wrked cllabratively t develp a framewrk fr managing the SNA1 fishery int the future t achieve utcmes that will benefit all sectrs. Achieving the utcmes will require an nging prcess f mnitring, infrmatin sharing, dialgue between sectrs, and a shared respnsibility acrss all users and managers f the resurce. 1 Sprt New Zealand, Sprt and Active Recreatin in the Lives f New Zealand Adults. 2013/14 Active New Zealand Survey Results. Wellingtn: Sprt New Zealand. Snapper (SNA1) Management Plan 14

16 20. The Plan has six sectins: Bimass target and timeframe Utilisatin f the SNA1 resurce Envirnmental cnsideratins Mnitring and research Implementing the Plan Cmmunicatin and educatin Snapper (SNA1) Management Plan 15

17 Bimass target and timeframe Overview 21. This sectin utlines the thery which explains hw fish ppulatins respnd t fishing, what that means fr determining a bimass target fr managing fisheries, and hw t manage fisheries s as t reach that target. There is als discussin as t whether benefits culd be gained frm separating SNA1 int sub-areas fr management purpses. Setting a bimass target and building twards it 22. Any substantial level f fishing will reduce the bimass f a ppulatin f fish frm its natural unfished state. Sustainable fishing is funded n fish ppulatins respnding t fishing in quite predictable ways. Fishing reduces the bimass and the number f slw-grwing lder fish, and shifts the ppulatin structure twards faster-grwing yunger fish. This results in a surplus prductin that can be harvested sustainably. Fishing can be sustainable at different levels f bimass, but lng-term yield is maximised at a specific bimass level (B MSY) that is determined by a stck s bilgy. A stck s bimass is als influenced by factrs unrelated t fishing, including envirnmental variables such as water temperature, fd availability, and changes in water and habitat quality. 23. Setting a management target (e.g. a target bimass r fishing mrtality rate) is an imprtant part f managing the SNA1 fishery. Higher bimass is typically assciated with a greater abundance f fish, mre large fish, and fish being distributed thrughut mre f their suitable habitat. Higher fish abundance als means a greater chance f fishers btaining better catch rates, althugh, as bimass increases abve B MSY the lng-term yield decreases. These factrs can influence the quality f fishing enjyed by custmary and recreatinal fishers, as well as the prfitability f cmmercial fishers. 24. Anther factr generally assciated with higher bimass, is that a stck is likely t be better able t withstand adverse envirnmental events, and the effects f harvesting n the wider ecsystem are likely t be less. It is als imprtant t recgnise that peple fishing in SNA1 take a mix f species, and the target fr snapper shuld cnsider the interrelatinship between snapper and ther species. Determining a bimass target fr SNA1 therefre requires the cnsideratin f a number f factrs that relate t the bilgy f the different species, the ecsystems in which they live, and the practicalities f fishing (these matters are discussed further in the sectin n envirnmental cnsideratins). 25. The Act requires the Minister t set a TAC that will maintain the snapper ppulatin at r abve the B MSY level r t mve it twards that level at an apprpriate rate. It is expected that a stck s bimass will fluctuate arund its target and that relatively small changes in bimass d nt require changes t the catch limit. Hwever, bigger fluctuatins shuld trigger an apprpriate management respnse. MPI s Harvest Strategy Standard ( HSS ) ( and Guidelines prvides guidance fr these respnses. 26. The size f the snapper ppulatins within SNA1 is measured by fisheries scientists in terms f the numbers and weights f snapper f different ages that tgether make up the verall bimass. The prcesses f stck assessment prvide estimates f the bimass f a stck at Snapper (SNA1) Management Plan 16

18 a given time, using all the relevant infrmatin available (i.e. reprductin, grwth, mrtality, histry f catch, hw different fishing gear selects snapper f different size and age, infrmatin abut mvement, and estimates f abundance). Similar mdels als allw scientists and managers t explre the effects f different management strategies int the future. 27. The factrs cnsidered in setting stck bimass targets have evlved ver recent decades. Previus bimass targets fr SNA1 were based n deterministic estimates f B MSY. This resulted in bimass targets f 21% t 23% f the unfished bimass. Hwever, as explained in the HSS and the Plenary 2 dcument, it is nw cnsidered mre apprpriate t set a bimass target by taking int accunt natural variability, harvest strategies, and ther factrs that influence a fishery. The default bimass target fr snapper prvided by the HSS and Guidelines, based n the bilgical characteristics f the species, is cnsidered t be 40% f the unfished bimass. Imprtantly, this bimass target reflects internatinal best practice. 28. The mst recent stck assessment estimated the verall SNA1 stck bimass in 2013 t have been at apprximately 20% f the unfished bimass (cmbining results fr the separate substcks). The separate sub-stcks were assessed as being at 24% f the unfished bimass fr the East Nrthland sub-stck and 19% fr the cmbined Hauraki Gulf/Bay f Plenty sub-stck. These values are median estimates (cnfidence intervals are prvided in the 2013 and subsequent Plenary reprts). Althugh the bimass has increased by as much as 70% in sme parts f the stck since 1988, it appears t have levelled ff since abut Fr a stck such as SNA1 that is currently estimated as being belw the recmmended target, the Minister must cnsider hw quickly the bimass shuld be increased t reach the target. Reductins t the current TAC and catch wuld be likely t increase bimass at a faster rate, but wuld have impacts n fishing. Making n changes t the current TAC and current fishing practices will result in a slwer rate f bimass increase with the pssibility that there wuld nt be a significant increase in bimass abve the current level. Sme strategies discussed by the Grup wuld aim t catch a given prprtin f the bimass available each year. These cnstant explitatin rate strategies wuld enable catch limits t be increased as evidence becmes available f increasing bimass. 30. The Act prvides discretin regarding the way and rate at which stck bimass shuld mve t reach the target. Guidance fr exercising that discretin is prvided by the HSS, which suggests that the target shuld be reached within a perid that is n lnger than twice the time t rebuild withut fishing. This has been estimated fr SNA1 t be apprximately 16 years fr the East Nrthland sub-stck and 24 years fr the Hauraki Gulf/Bay f Plenty sub-stck. Given that the timeframe t reach the bimass target (fr all f SNA1) prpsed by the Grup is 25 years, the intermediate milestne f reaching 30% f the unfished bimass within 10 years (by 2025) prvides a useful checkpint t assess prgress. Including the new bimass estimate frm the tagging survey in an updated assessment n later than will prvide an pprtunity t measure prgress against the intermediate checkpint and take the necessary actin t ensure the target will be reached. Initial estimates frm the tagging survey might be available in 2018, and available infrmatin will be used t regularly mnitr fishery status t ensure it is n track t reach the target and timeframe. 31. The Grup discussed different perspectives n what the target bimass shuld be fr SNA1, and als the way and rate it shuld be achieved. The Grup als cnsidered several supprting measures that shuld be applied t achieve the target bimass level. 2 Fisheries Assessment Plenary May 2015 Stck Assessments and Stck Status Vlume 3: Red Gurnard t Yellw-eyed Mullet. Snapper (SNA1) Management Plan 17

19 Taking int accunt the different snapper ppulatins in the sub-areas 32. The Minister asked the Grup t cnsider whether SNA1 shuld be split int different management areas t imprve the ability t manage the fishery. Different management wuld require separate bimass targets and rebuilding timeframes, given the ptentially different stck status and prductivity characteristics. 33. The 2013 assessment indicated that the bulk f the bimass (sme 72% f the ttal) was in the Hauraki Gulf/Bay f Plenty cmbined sub-stck. Fr the individual sub-stcks, the Hauraki Gulf area was estimated t cntain sme 65% f the verall bimass, while the East Nrthland area had 28% and the Bay f Plenty abut 7% (frm Table 16, page 1213, f the Fisheries Assessment Plenary May 2015 Stck Assessments and Stck Status Vlume 3: Red Gurnard t Yellw-eyed Mullet). 34. The ppulatins f snapper in these three areas have different characteristics, including the number and size/age range f fish, grwth rates, the likely rate f rebuild, the carrying capacity f the envirnment, and fishing pressure. This means that the stcks can perfrm differently frm each ther. The 2013 stck assessment indicated that the East Nrthland and Hauraki Gulf ppulatins appear t have been rebuilding up t 2005, while the Bay f Plenty ppulatin has been grwing at a lesser rate. 35. Management measures generally apply t the verall SNA1 stck and fishery. Althugh nt agreed as a pririty, the Grup acknwledged that area-based refinements t management measures culd be cnsidered if substantial advantages culd be anticipated. New infrmatin that will help determine any benefits f dividing SNA1 int separate stcks fr management purpses may be prvided frm the tagging survey that will begin in 2016, and the prpsed advisry grup culd then cnsider the matter in detail. Hwever, the Grup nted the technical and legal difficulties assciated with sub-dividing the SNA1 QMA int sub-areas, and the likely csts f managing at a finer spatial scale. All sectrs acknwledged that dividing SNA1 int sub-areas and managing SNA1 at a finer spatial scale was impractical at this time. 36. The Grup agreed that each f the three sub-ppulatins (i.e. East Nrthland, Hauraki Gulf, and the Bay f Plenty) shuld be mnitred and assessed separately 3, prvided it is beneficial and cst-effective t d s. Recmmended management area, target bimass, and timeframe t reach it 37. The Grup recmmends that: (a) The SNA1 QMA nt be sub-divided at this time, but the three sub-stcks (i.e. East Nrthland, Hauraki Gulf, and the Bay f Plenty) shuld be mnitred and assessed separately. (b) A bimass target f 40% f the unfished state be achieved within 25 years (by 2040). (c) The bimass target may be reviewed at any time the HSS is reviewed r the SNA1 TAC is reviewed. 3 In 2013, SNA1 was assessed as three sub-stcks with mvement f fish between them. Snapper (SNA1) Management Plan 18

20 (d) An intermediate milestne f 30% f the unfished bimass level be achieved within 10 years (by 2025) as a valuable checkpint fr prgress twards the 40% target. 38. The grup cnsiders that a bimass target f 40% f the unfished state: Cmplies with the MPI HSS and Guidelines fr the default target fr a snapper stck; Prvides an increased sustainable catch; The intermediate milestne f reaching 30% f the unfished bimass within 10 years prvides a valuable checkpint t assess prgress; and Better supprts the inshre ecsystem. Management measures that will supprt the target being achieved 39. The Plan relies n bth direct and indirect measures that will achieve the target. The measures that can be used t supprt the bimass increase twards the target are discussed belw. Setting the TAC 40. The Grup agreed that the TAC is the primary management measure that will enable the SNA1 stck bimass t mve twards the target. The Grup als agreed that the 2013 determinatin ught nt t be revisited, and as there will be n new stck assessment until (althugh we might have early tagging results in 2018), any discussin n the TAC at this time is mt. 41. The Grup nted that the estimate f recreatinal catch in 2014 indicates that catch has declined substantially cmpared t the Natinal Panel Survey (NPS) t estimate recreatinal harvest in SNA1. Specifically, recreatinal catch has declined by 18% in East Nrthland, by 70% in the Hauraki Gulf, and by 47% in the Bay f Plenty. These data indicate that the ttal recreatinal snapper catch in SNA1 can be highly variable, fr reasns that are nt well understd. 42. The Grup nted that cmmercial fishers have made substantial investments in implementing a number f measures (e.g. increased bservatin and electrnic mnitring f cmmercial vessels, reprting f the catch f snapper belw the MLS) since 2013 t imprve the infrmatin being gathered n the SNA1 fishery. The recmmended changes t the MLS and gear selectivity, and cmmercial fishers vluntary mve-n rule, are aimed at delivering reductins in the mrtality assciated with fishing. Recmmended TAC 43. The Grup recmmends that: (a) N change t the TAC be made in 2016/17. (b) By , a review be cnducted using updated stck assessment infrmatin, and the results be used by the prpsed advisry grup t recmmend subsequent 4 Regular fishery mnitring will ensure it is n track t meet the target and timeframe. Snapper (SNA1) Management Plan 19

21 management actin, including a TAC change, if required t achieve the intermediate milestne and bimass target within the specified timeframes. Indirect management measures t supprt building the bimass t the target 44. The Grup recmmends several supprting measures that are aimed at enabling the SNA1 bimass t increase in the cming years withut reducing the TAC. In additin, the Grup has recmmended several mnitring actins that will serve t mitigate risks t the stck by prviding the ability t track prgress. 45. The Grup sught scientific advice n the gains in yield and ptential increases in bimass that culd be achieved by adpting varius indirect measures that take fewer small fish and result in less mrtality f small fish. The mdelling results indicate that benefits culd be gained frm: Imprving the average yield. By imprving selectivity, the yield frm the fishery can be increased, with fewer fish n average being taken. Hwever, achieving thse gains wuld require the MLS t be clsely matched t the size f fish selected by different fishing methds t avid simply increasing the ttal mrtality. Reducing, acrss all sectrs, the incidental mrtality caused by fishing, which can be imprved thrugh the survival f released snapper and aviding catching undersized snapper. Imprvements in fishing methds and fish-handling practices that can increase the size f snapper caught and reduce release mrtality. Imprving average yield by changing the MLS and increasing size selectivity f gear 46. One purpse f the MLS is t allw snapper t spawn at least nce befre they can be caught. The available infrmatin fr snapper in SNA1 shws that they reach sexual maturity at an age f 3 t 4 years and at a length f 20 t 28 cm. 47. At present, a different MLS is set fr cmmercial and recreatinal fishers fr SNA1. The current cmmercial MLS fr snapper is 25 cm, which includes juveniles as well as sexually-mature snapper. The MLS fr recreatinal fishing is nw 30 cm, which is larger than the size range fr maturing snapper (20 t 28 cm). 48. Fr snapper, the effect that different MLS ptins, gear selectivity, and mrtality rates wuld have n the average yield and bimass increase rate was explred using a simulatin mdel. The results (summarised in Appendices C and D) shw that: The main advantage f increasing the MLS and adjusting selectivity wuld be a higher ptimal explitatin rate (the prprtin f the available bimass that is allwed t be taken), an increase in yields available nce the target bimass has been reached, and an increase in catch rate (i.e. an increase in the encunter rate f fish by the recreatinal sectr and an increase in catch per unit effrt ( CPUE ) fr the cmmercial sectr). The MLS, mrtality, and selectivity ptins tested shwed that the intermediate bimass target is ptentially achievable if mrtality frm all fishing methds can be aligned t mrtality achieved by cmmercial bttm lngline fishing. Snapper (SNA1) Management Plan 20

22 that there is n significant change t the time t reach the target if explitatin rates are maintained at 2013 levels. that the actual rebuilding time will depend n reprductive success, which culd be higher r lwer than that used in the simulatin mdel. Recmmended actins t imprve yield 49. The Grup recmmends that fr SNA1: (a) Over time, the MLS be aligned fr cmmercial and recreatinal fishers. Increasing the MLS nly becmes an ptin when selectivity has been measured and survivrship f released fish is reliably estimated. Sme initial suggestins are: i. Including the Precisin Seafd Harvesting ( PSH ) and ther technlgy in cmmercial trawl gear and innvatins in ther fishing gear if it prves beneficial in reducing mrtality f small snapper; and ii. Educating and encuraging Māri custmary nn-cmmercial and recreatinal fishers t use apprpriate baited hk sizes, artificial lures, and ther innvatins that catch fewer small snapper. Reducing the incidental mrtality f snapper in SNA1 acrss all fishing sectrs 50. Snapper abve and belw the MLS are killed incidentally by the fishing prcess, primarily thrugh the requirement fr bth recreatinal and cmmercial fishers t return snapper belw the MLS. It is imprtant t knw what prprtin f fish returned t the sea survives and if this prprtin changes. The dead fish can then be accunted fr within the ttal fishing mrtality estimates, thereby better infrming TAC decisins. 51. Reducing this fishing-related incidental mrtality will make a cntributin t increasing the bimass f SNA1. The best way t avid this mrtality is t avid catching small snapper. The fcus is largely n fishing gear and practices that avid catching snapper belw the MLS, and ensuring that handling and release practices are effective in minimising the assciated mrtality. 52. Different types f fishing gear are mre r less suited t returning fish alive t the sea. Snapper caught n lng lines and by recreatinal hk-and-line methds ften cme n bard vessels alive. Artificial lures generally hk snapper in the muth, which imprves chances f survival after release. Hwever, snapper that are hked in the gills r gut are less likely t survive. Snapper caught in set nets, seine nets, r trawl gear are ften dead r damaged when brught abard. The Gvernment and fishing industry are investing in new trawl gear (PSH) that is designed t bring fish abard in the best pssible cnditin t enhance market value and ptentially allw fr releasing small fish alive and with a high chance f survival. Gear design is als aiming t imprve size and species selectivity t avid catching fish that are nt marketable. 53. Other measures might als be applied t minimise the mrtality f very small snapper that culd be taken by all sectrs. This includes aviding fishing in areas where small snapper are cmmn, such as the mve-n rule vluntarily adpted by the cmmercial fishers (fishers are required t mve n if undersized snapper make up a large prprtin f the catch see link t agreement belw). Snapper (SNA1) Management Plan 21

23 Recmmended actins t reduce mrtality 54. The Grup recmmends that: (a) All fishers be encuraged t avid catching juvenile fish wherever pssible; (b) Research be undertaken t determine the survival f snapper released after capture by cmmercial and recreatinal fishing methds; (c) Best-practice snapper handling and release methds be updated, and all fishers be infrmed and encuraged t adpt best-practice methds fr handling and releasing snapper; (d) The SNA1 Cmmercial industry grup be asked t review the 2015 vluntary mve-n measure t align with best available infrmatin (see SNA1 Cmmercial agreements at _-_2014.pdf ). (e) Recreatinal fisher grups be encuraged t develp a mve-n practice as part f a package f measures t reduce incidental catch f snapper belw the MLS. Snapper (SNA1) Management Plan 22

24 Utilisatin f the SNA1 resurce Overview 55. The Act defines utilisatin t mean cnserving, using, enhancing, and develping fisheries resurces t enable peple t prvide fr their scial, ecnmic, and cultural well-being. 56. The Minister prvides fr utilisatin by firstly setting a TAC fr a stck. Within the TAC, the Minister makes allwances fr Māri custmary nn-cmmercial interests, recreatinal interests, all ther surces f mrtality caused by fishing, and sets a TACC. Māri custmary fishers are prvided fr accrding t the best infrmatin abut what they take cllectively. Neither the recreatinal nr the cmmercial sectr has pririty n hw much f the TAC they are allcated by the Minister. The Minister has brad discretin under the Act in making allcatin decisins. 57. In calling fr the Grup t be established, the Minister set the tasks f determining what getting the best frm SNA1 means fr all sectrs, and als hw the benefits frm the fishery shuld be allcated within the bunds set by him. These matters relate t the utilisatin f SNA Determining hw t get the best frm the fishery is a cmplicated task as there are many views n what is best. Snapper are caught fr fd, recreatin, cultural events, and fr sale. A wide range f businesses and jbs are directly and indirectly assciated with the recreatinal and cmmercial snapper fishery in SNA1. The ecnmic, cultural, and scial benefits are accrdingly substantial. 59. It may nt be pssible t meet the expectatins f all fishers when the demand fr snapper exceeds what can be taken sustainably, and the quality f fishing sught is different. Cmmercial fishers use pwerful, efficient fishing methds and can cver large areas, which means that they can be satisfied with a relatively less abundant stck. Cmmercial fishers als rely n catching ther species withut exceeding the SNA1 TACC. Nn-cmmercial fishers use less pwerful and efficient methds and are mre likely t want a mre abundant stck readily available s they can enjy the benefits f better availability, higher catch rates, and larger fish n average. Snapper fr custmary use may be caught either by fishers using amateur methds r by cmmercial fishers and methds prviding they have been issued with a custmary harvest authrisatin. Setting Allwances dividing up the catch limit 60. The Grup agreed n the fllwing aspects relating t utilisatin: SNA1 is subjected t a high level f utilisatin and is valued by all sectrs; It is imprtant t imprve the understanding f all sectrs f the aspiratins fr SNA1 f the ther sectrs; The custmary nn-cmmercial allwance has been set based n limited infrmatin. This is due t custmary fishing in SNA1 still largely being managed under the transitinal custmary prvisins within the Amateur Fishing Regulatins with n legal requirement t reprt custmary harvest. In additin, the legal cnstraints f the interim regulatins has limited the ability f Māri t exercise their custmary harvest rights. Several iwi Snapper (SNA1) Management Plan 23

25 within SNA1 have expressed interest in establishing a pataka kai (fd cupbard) t harvest and stre seafd fr later use at tangi and hui. The grwing use f pataka kai may have implicatins fr setting future allwances nting that the current custmary allwance is 50 tnnes ut f 8050 TAC. 61. The Minister has stated that, ver time, he intends t allcate an equal amunt f snapper t the recreatinal and cmmercial sectrs. The current allcatin f the SNA1 TAC, set in 2013, is as fllws (in tnnes): TAC TACC Recreatinal Māri custmary Other surces f fishing-related nn-cmmercial mrtality The Grup has: Agreed that the Minister has discretin in setting the allwances and the TACC, and can be guided by varius factrs that he r she cnsiders are relevant. The Grup did nt reach agreement n which factrs the Minister shuld cnsider, but the fllwing were discussed: Relative value f snapper t each sectr; Trends in catch rates (CPUE) fr each sectr; Ppulatin trends; Average fish size r ther perfrmance indicatrs f fishing quality. Nt agreed n a specific allcatin, including the Minister s guidance t mve t 50:50. Hwever, the cmmercial sectr has stated supprt fr 50:50 prvided that the allcatin des nt change any further. Recreatinal representatives acknwledge the Minister s 50:50 aspiratin and acknwledge that it is within his discretin, althugh the plan lacks any pathway fr achieving it. Nted that any mve twards a 50:50 allcatin between recreatinal and cmmercial interests thrugh a reductin in the TAC will severely impact n the existing rights f many quta wners. Subsequent increases in the TACC as the fisheries recver will nt return t all thse cmmercial participants, but nly t thse hlding s 28N rights. Sectin 28N rights are a plicy slutin t a prblem in the regime in 1986 that nw means that the wrng incentives exist because althugh prtecting rights, they inhibit the ability t mve t slutins fr this and ther fisheries. Suggested that fr a mre respnsive system, the Crwn shuld negtiate with thse quta wners hlding these preferential allcatin rights t extinguish them via an apprpriate cmpensatin mechanism. Nt agreed that a specific plicy be adpted fr determining hw allwances shuld be made. 63. The Grup discussed the current situatin with respect t btaining updated infrmatin n the catch by each sectr t infrm the setting f allwances. The Grup nted that the harvest infrmatin reprted by Māri custmary fishers under the Kaimana Custmary Fishing Regulatins (1998) cvers nly a fractin f what is harvested as the majrity f custmary harvesting ccurs under the Amateur Fishing Regulatins which cntains n legal requirement t reprt. The Grup nted that Te Ohu Kaimana has develped a web applicatin t supprt electrnic reprting f custmary fishing and that this culd prvide a slutin, in cmbinatin Snapper (SNA1) Management Plan 24

26 with mre iwi adpting the Kaimana Custmary Regulatins. Several iwi thrughut the SNA1 area have indicated their willingness t implement the electrnic reprting system pending supprt t wrk with their kaitiaki. The Grup prpsed that Gvernment as Treaty partner lk t prvide assistance prmised t iwi under the Deed f Settlement t better manage custmary nn-cmmercial fishing. Managing each user grup within the share prvided 64. The verall management apprach t ensure sustainability fr all QMS stcks relies n the TAC nt being exceeded n average, which means each sectr s ttal catch must generally be within the allwance r TACC prvided. Hwever, the allwances and TACC are nt abslute. It is expected that the catch taken by each sectr will fluctuate abve r belw the allwance r TACC frm year t year. This culd ccur fr a variety f reasns fisher numbers (e.g. a pr summer restricting recreatinal bats), the availability f small r bigger fish, changes in catch rates and market frces. Recmmended actins t manage catch t Allwances 65. The Grup recmmends that: Regular mnitring and analysis f the levels f catch by all sectrs and estimates f ther surces f fishing-related mrtality be required. This will additinally invlve Reprting f snapper by amateur fishing charter vessels n their Activity Catch Return frms; Māri custmary nn-cmmercial catch reprting estimates be imprved, including thrugh the Crwn assisting iwi t use electrnic reprting; a clear set f guidelines fr the required precisin and timing f updates t this infrmatin; If, as result f mnitring, analysis, and reprting, the recmmended future Advisry Grup detects trends that indicate that targets and timeframes in this plan (as prpsed in paragraph 37) will nt be achieved, then apprpriate actin will be taken. Rules that manage the use f the SNA1 resurce 66. There are a number f rules that are designed t manage catch within the allwances fr recreatinal interests and the TACC fr cmmercial fishers. Daily bag limits cnstrain the catch by recreatinal fishers. Size limits are als used, in part, t keep catch within the allwance. Recreatinal fishers face fines if they are caught exceeding the bag limit r in pssessin f fish belw the MLS. Fr cmmercial fishers, there is a statutry reprting and catch-balancing system that perates t cnstrain catch within the TACC. An ecnmic penalty (the deemed value) is charged fr cmmercial catch landed in excess f annual catch entitlements held by the individual fisher. Cmmercial fishers face substantial fines and penalties fr breaching cmmercial fishing rules. 67. Custmary nn-cmmercial fishing is managed thrugh the interim custmary prvisins f the Amateur Fishing Regulatins (2013) and the Kaimana Custmary Regulatins (1998). Bth sets f regulatins enable nminated kaitiaki, r authrised persns, t issue a custmary harvest authrisatin t a fisher specifying the species t be taken, the fishing lcatin, methd and date, the quantity and size limits fr the seafd t be harvested. The authrisatins als Snapper (SNA1) Management Plan 25

27 specify the custmary use (cultural event) and the venue where the kaimana will be taken and cnsumed. The Kaimana Regulatins give kaitiaki greater authrity t determine apprpriate custmary uses. This authrity is balanced by an bligatin t reprt the quantities harvested t the Crwn. In additin t the custmary regulatins, it is als cmmn that fish fr custmary use is taken under rules prviding fr recreatinal fishing if the amunt f kaimana required can be met under the daily bag limits fr recreatinal fishing. Iwi and iwiwned fishing cmpanies als prvide fish landed under ACE (cmmercially caught) t iwi members fr custmary use. Fish surced fr custmary use under the recreatinal bag limit r the QMS (ACE) is nt accunted fr within the custmary Allwance. 68. The custmary regulatins als prvide fr iwi and hapu t establish, after Ministerial apprval, specific areas (mataitai reserves and taiapure) ver which they may exercise their rangatiratanga thrugh management cntrl. This includes the ability t intrduce bylaws r regulatins t manage fishing activity, including the prhibitin n use f certain fishing methds and exclusin f cmmercial fishing. While these rules d cnstrain fishing activity, their primary purpse is t maintain custmary fishing rights and ensure the sustainable management f areas imprtant fr custmary fishing. 69. There are als measures that cnstrain the use f certain fishing methds r prhibit fishing in specific lcatins r times f the year. While the existing rules are generally in place t prtect juvenile fish, habitats, marine bidiversity, r prtected species, sme measures culd be applied t influence the amunt f catch taken. Snapper (SNA1) Management Plan 26

28 Envirnmental cnsideratins Overview 70. The nging prductivity and success f the SNA1 fishery depends critically n the aquatic envirnment being in a healthy state that can supprt snapper prductin. This fact is true fr all stcks, which sets up an imprtant driver fr maintaining and, where feasible, imprving the prductive capacity f the marine envirnment in SNA The marine envirnment faces a range f effects, bth natural and human-induced, that can have an impact n its prductive capacity. Fishing itself can have adverse effects n the aquatic envirnment and ecsystems, as can siltatin and pllutin frm land-based activities. In the lnger term, the effects f changes in climate, cean acidificatin and cean circulatin might als affect snapper and ther marine species. 72. Fishing fr snapper can als have impacts n ther species, including prtected species. Incidental mrtality f seabirds has been identified, with specific cncern fr the black petrel, as explained further belw. Measures are currently in place t reduce the capture f seabirds in SNA1 (see sectin n the Natinal Plan f Actin Seabirds belw). 73. Snapper is a key target species fr all fishers, but fishing fr snapper is assciated with a bycatch f ther species. Actins taken fr the snapper fishery t manage the impacts f fishing n the aquatic envirnment are likely t have a beneficial effect fr ther species. Hwever, managing the snapper target fishery needs t cnsider the mixed-species nature f the fishery and als managing the ther species taken. Managing ther species is ut f scpe fr this Grup. Habitat Degradatin and Lss 74. Several management measures are already in place t prtect juvenile snapper frm bulk harvesting methds. These clsed areas als prtect habitats that are imprtant fr yung snapper frm the ptentially adverse effects f fishing using bttm-cntacting methds. Estuary and harbur areas are clsed t cmmercial trawling, Danish seining, and dredging. 75. Hwever, the imprtant nursery grunds in these prtected waters are vulnerable t the effects f siltatin and pllutin frm activities n land. Fishers are nt respnsible fr these effects, but their interests are affected by the impacts n snapper prductivity. It is imprtant t ensure that lcal and reginal authrities are well infrmed abut the ptential fr impacts f landbased activities n the marine envirnment and snapper prductivity, s that adequate planning cntrls and ther measures are implemented t avid impacts. 76. Fishing als can impact benthic cmmunities and habitats in the wider area that are imprtant fr snapper and ther species. Different types f habitat are imprtant t each stage f the snapper lifecycle. The Act requires that any adverse effects f fishing n the aquatic envirnment shuld be avided, remedied, r mitigated. It is imprtant t gain a better understanding f the nature and extent f the verlap between ptential impacts and imprtant benthic areas and habitats, s that adverse effects can be managed where necessary. Snapper (SNA1) Management Plan 27

29 77. Addressing any adverse effects f fishing n the envirnment is the statutry respnsibility f the Minister and MPI and the scial respnsibility f fishers. In additin, the envirnmental principles under the Act include that habitats f particular significance fr fisheries management shuld be prtected. Recmmended actins t address habitat degradatin and lss 78. The Grup recmmends that MPI undertakes the fllwing actins: (a) (b) (c) (d) (e) (f) (g) (h) Habitats f particular significance fr snapper be identified and mapped, and areas that are under threat be identified, and lss f habitat be estimated, in Analysis f the trawl ftprint using the vessel mnitring system (VMS) n fishing activity be reprted. The perfrmance f existing prtectin measures and prtected areas (under fisheries legislatin) shuld be examined t determine if alternative areas r prtectin measures culd perfrm better. This includes cnsidering the prtectin f areas which are knwn t have a high number f small snapper r where high numbers f small snapper have previusly been reprted in research prjects. MPI t analyse the size cmpsitin f snapper by lcatin frm MPI fisheries bserver recrds and t cmplete the reprt in Encuraging fishers t find and adpt fishing gear and methds that reduce adverse effects n the benthic envirnment by The existence and implicatins f habitat bttlenecks fr snapper be assessed. MPI t request an annual update n new wrk in this field frm NIWA Auckland. MPI will prvide annual updates n the effects f climate change and cean acidificatin and cmment n its relevance t SNA1, including updates n prgress with the research prject Castal Acidificatin rates, impacts and mnitring (jintly funded by the Ministry fr Business Innvatin and Emplyment and MPI). Opprtunities t enhance seabed habitat imprtant t the lifecycle f snapper be explred in cnjunctin with lcal authrities. Prgrammes targeted at the recvery f bigenic structures in the SNA1 area be supprted in cnjunctin with lcal authrities. MPI t request an annual update frm the Mussel Reef Restratin Trust and t reprt n ther recvery activities in Nrthland r Bay f Plenty. Addressing land-based effects n snapper habitats 79. Respnsibility fr the castal envirnment, including land-based effects and the intrductin f assciated sediments and pllutin int the castal marine envirnment, rests with reginal cuncils (fr SNA1, the cuncils are Nrthland, Auckland, Waikat, Bay f Plenty). Strng relatinships with lcal authrities, including these reginal cuncils, need t be frmed by MPI and evidence prvided t the cuncils t infrm planning prcesses and decisins under the Snapper (SNA1) Management Plan 28

30 Resurce Management Act In additin, the Envirnmental Reprting Act 2015 establishes a framewrk and bligatins fr reprting n aspects f the envirnment, including the marine envirnment frm inshre ut t the bundaries f the Exclusive Ecnmic Zne ( EEZ ). The reprting bligatins shuld assist with btaining rutinely updated infrmatin n the state f the marine envirnment within SNA1. Recmmended actins t address land-based effects 80. The Grup recmmends that: (a) (b) (c) Pathways be established fr engagement between MPI and lcal authrities respnsible fr planning rules and decisins that impact n SNA1. MPI t reprt annually n prtcls and engagement in FMA1. The imprtance f castal marine envirnments and snapper habitat t fisheries management generally be stressed t lcal and reginal authrities and they be required t recgnise the imprtance in their plans. MPI t advise the Grup f pprtunities t cntribute t the relevant planning prcesses. Lcal authrities be required t mnitr and reprt n sediment and nutrient levels depsited in the castal marine area, and t adpt apprpriate mitigatin and restratin strategies. Prtected Species Interactins 81. The capture f prtected species must be reprted by cmmercial fishers. These reprts shw that the majr prtected species interactin in the snapper fishery is with seabirds. All seabirds in New Zealand are prtected. Mitigating fishing-related impacts n seabirds is utlined in the Natinal Plan f Actin (NPOA) fr Seabirds A science-based risk assessment has identified black petrel as the seabird mst at risk in New Zealand as a result f incidental fishing mrtality. The black petrel ppulatin is fund arund the Hauraki Gulf. Lng-lining is the main fishing methd that pses a risk t black petrel. Specific strategies t address the incidental mrtality f seabirds are utlined in the NPOA Seabirds. 83. The available infrmatin suggests that the SNA1 fishery has limited interactins with prtected species such as dlphins, whales, turtles, crals, etc. The extent f thse interactins may becme clearer with additinal independent mnitring f the cmmercial snapper fishing fleet frm 1 Octber The need fr specific actins can be reviewed after cmpilatin f several years f fishing data. Snapper (SNA1) Management Plan 29

31 Mnitring and research Overview 84. Managing fisheries requires bjective and reliable infrmatin that is cnsistent with MPI s Research and Infrmatin Standard t be available t guide management decisins. The Act als specifies a set f infrmatin principles that require management decisins t be based n the best available infrmatin and take int accunt the uncertainty r inadequacy f the infrmatin. 85. In this sectin, the Grup recmmends a range f ptins fr the nging cllectin f imprtant data, their analysis, and interpretatin. This infrmatin will supprt the requirements t mnitr the perfrmance f the stck and the fishery against the management bjectives and targets prpsed in paragraph 37, and will prvide the infrmatin base fr management actins t achieve the gals and bjectives f the Plan. 86. The Grup discussed the imprtance f the SNA1 fishery fr all sectrs and the need t implement and secure dedicated funding fr nging, rutine mnitring. The Grup nted that apprpriate mnitring wuld be essential fr prviding early warnings f any emerging prblems. 87. There are several aspects t the cllectin f data n SNA1, and hw t use the data t supprt management. Regularly updated data n harvest and fishing effrt are used t estimate changes in the relative abundance f the stck ver time. Determining the size and age distributin in the catch prvides infrmatin abut the entry f yung snapper int the fishery (recruitment) and hw the different age classes are mving thugh the snapper ppulatin. 88. Quantitative stck assessments integrate all the relevant data and estimate the status f the stck in relatin t management targets and bimass limits. These stck assessments rely n numerical mdels that simulate the ppulatin and stck dynamics f SNA1, and are als used fr explring hw the stck wuld perfrm int the future under different management scenaris. Fllwing the last stck assessment cmpleted in 2013, the Snapper Plenary nted that as there is uncertainty in the relatinship between standardised CPUE and abundance, it is necessary t investigate ptins fr fishery-independent abundance estimates, such as a new tagging study. It has been 20 years since the last SNA1 tagging prject and a new estimate f stck abundance and mre infrmatin n mvement between sub-stcks is a research pririty. 89. A new SNA1 tagging prject is being designed t update knwledge f abslute abundance ver the next few years. Limitatins in the design f the previus tagging study and the numbers f tag releases resulted in uncertainty in the bimass estimate and infrmatin n fish mvement (especially between the Hauraki Gulf and the Bay f Plenty). Learning frm the previus study, the new tagging survey will address ptential causes f bias and shuld prduce a reliable estimate f current bimass fr each sub-stck. The tagging survey allws fr the number f snapper in the ppulatin t be estimated. The basic assumptin is that the prprtin f tagged fish in the ppulatin will be the same as the prprtin f tagged fish in the catch. This basic assumptin underpins all that fllws. By knwing the catch, the number f tagged fish recaptured, and the number released, the ttal ppulatin numbers can be calculated. Snapper (SNA1) Management Plan 30

32 90. The frequency at which the varius data are cllected, and stck assessments are updated, will depend n the chsen management strategy fr SNA1. A management strategy evaluatin (MSE) research prject is underway in which the ptimum assessment and mnitring frequency will be determined fr a number f alternative SNA1 management strategies pursuant t agreed levels f acceptable risk (as utlined in the Harvest Strategy Standard). This prject shuld prvide critical infrmatin necessary fr the develpment f an apprpriate mnitring and research schedule fr SNA1.The cst f different management strategy ptins is a significant cnsideratin, and will be evaluated in cnjunctin with the MSE. Recmmended mnitring and research activities 91. The Grup recmmends the fllwing data gathering, mnitring, and research activities: (a) (b) (c) Testing, using the MSE, different data cllectin and management ptins and assciated risk t help define management and mnitring strategies. Securing additinal and dedicated funding frm a brad range f surces (in additin t the current MPI fisheries research budget) fr designing and implementing new r augmented data gathering, mnitring, and research activities, as specified in this Plan. Implementing an nging, rutine fisheries-independent mnitring prgramme t track the perfrmance f the stck and fishery against the Plan. Key elements f such a prgramme include the fllwing iii. iv. Develp, by June 2017, a prject prpsal t design and cst a fisheriesindependent survey using cmmercial bttm lngline gear and cmparing this with ther alternatives fr mnitring relative abundance such as trickle tagging r a research vessel survey. Estimate the csts and benefits f all alternatives identified and explre ptins fr making quta r ACE available fr the research. Sampling cmmercial landings r catch at sea t cllect tliths (ear bnes) fr aging snapper annually, subject t analysis f sampling frequency. Prjects t read ages and determine the age structure f the ppulatin culd be undertaken every tw years, r as determined by the MSE. v. Mnitring and reprting recreatinal catch and effrt in SNA1 by a. Updating the full natinal panel survey (NPS) estimate every 5 years; b. Prviding an intermediate recreatinal harvest update between NPS estimates; c. Undertaking a cincident aerial verflight and bat ramp survey fr SNA1 fr the next NPS survey, with cst-benefits t be evaluated ver the lnger term; d. Maintaining recreatinal fishing effrt mnitring using web cameras at key bat ramps and evaluating its validity peridically; e. Surveying recreatinal catches at key ramps t maintain ability t scale effrt t catch and evaluate its validity peridically; f. Mnitring the catch and return f undersized snapper by cmmercial and amateur fishers; g. Reprting recreatinal snapper catch n amateur-fishing charter vessels. Snapper (SNA1) Management Plan 31

33 vi. vii. Investigating ptins fr updating the estimate f abslute abundance frm an apprpriate cst-effective survey, including by a. Implementing a tagging bimass survey design that will prvide infrmatin abut bimass as well as mvement between sub-stcks, as prgrammed fr 2016; r b. Applying the results frm an nging trickle tagging prgramme, if ne is implemented. Cnducting a fully-quantitative stck assessment at least every 5 years t estimate stck status and assess the effectiveness f management measures, including the TAC, required t achieve the intermediate milestne and target, while aviding the bimass limits. (d) (e) (f) (g) (h) (i) (j) (k) Imprve reprting f Māri custmary nn-cmmercial harvest. Imprving understanding f the ttal mrtality assciated with all fishing methds. MPI t review catch recrds frm bservers, cmmercial, and recreatinal fishers and cnsider whether a survival study using a hlding net is required by Imprving understanding f the survival rate f released snapper, bth undersized and legal sized. Review internatinal literature and cnsider whether a survival study using a hlding net is required by Develping and updating best-practice fish-handling and release methds. A guide will be develped and prmted by the New Zealand Sprt Fishing Cuncil by 30 June 2017 r earlier if pssible. Defining and identifying habitats f particular significance fr fisheries management in SNA1. MPI t prvide a summary f infrmatin available. Investigating the perfrmance f existing methd and area measures (specifically fr trawling), and explring ptins t imprve perfrmance. Mnitr the implicatins f climate change fr FMA1 (sea temperature and cean acidificatin). MPI t prvide annual updates. Investigating ways t mnitr the perfrmance f educatin and cmmunicatin initiatives. Snapper (SNA1) Management Plan 32

34 Implementing the Plan Overview 92. The Act prvides the legislative framewrk fr managing the SNA1 fishery. The Minister is respnsible fr almst all decisins required under the Act, ther than thse which are administrative in nature, such as applicatins fr fishing permits. MPI is respnsible fr administering the Act, which includes planning and implementing varius activities related t management. These activities include research, mnitring, cmpliance, reprting, regulatry changes, cnsultatin, and prviding advice t the Minister. 93. In prviding advice t the Minister n mst fisheries management matters, MPI is required t cnsult interested parties and prvide fr the input and participatin f tangata whenua. At present, pprtunities fr cnsultatin n, and input int, management reviews are prvided by a reginal recreatinal fishing frum which meets three times each year t discuss fisheries management matters with MPI, unscheduled meetings with cmmercial stakehlders as required, and reginal iwi frums which perate in the Bay f Plenty and fr part f Nrthland. The Grup als nted that the Hkianga Accrd, frmed in 2005, prvides a frum fr discussin f Māri custmary fisheries interests f mid-nrth iwi and hapu. 94. Fisheries research prgress and results are reviewed by the relevant scientific wrking grups thrughut each year. The Nrthern Inshre Wrking Grup reviews research related t SNA1 and meets mst ften in Auckland. The Wrking Grup includes MPI scientists, research prviders, cmmercial fishing and recreatinal fishing scientists, and ther representatives. Attendance at Wrking Grup meetings is pen t peple interested in the science and wh agree t the standards f participatin as set ut in the Wrking Grup Terms f Reference. 95. MPI undertakes public cnsultatin n prpsed changes t the catch limit and fisheries rules. The cnsultatin perid is fur t six weeks in duratin. There is limited pprtunity t have input int what ptins shuld be cnsidered prir t this cnsultatin. 96. The draft Natinal Fisheries Plan fr inshre finfish species is an imprtant management tl used by MPI t determine pririties. The fisheries planning prcess aims t prduce tw reprts annually the Annual Review Reprt (ARR) and the Annual Operatinal Plan (AOP). The ARR is a high-level assessment f the perfrmance f the fisheries and relies n a few key indicatrs. The AOP sets ut the actins and services that will be undertaken fr the upcming year. There is limited pprtunity fr peple with an interest t be invlved in these reprts. The Grup nted the pssibility t include this SNA1 Plan as a specific chapter within the Natinal inshre finfish plan. 97. The Grup cnsiders that the existing management prcesses that apply fr SNA1 d nt prvide adequate pprtunities fr sectr input. The Grup cnsiders there is a need t change the way in which stakehlders and tangata whenua engage with MPI and prvide input int fisheries management in rder that management becmes mre respnsive t, and representative f, thse with an interest in the fishery. Recmmendatins t address this are prvided in the sectin n Educatin and Cmmunicatin. Snapper (SNA1) Management Plan 33

35 Establishing an advisry grup 98. The Grup recgnises the value f the c-peratin and gdwill between the three sectrs which has been a feature f the Grup s wrk t date. T build n this strength, the Grup cnsiders that a future advisry grup culd play a rle in ensuring that custmary, recreatinal, and cmmercial fishers, and envirnmental interests, have an effective vice in the management f SNA1. A cllabrative grup wuld prvide an pprtunity t reach cllective slutins and advise the Minister n actins fr managing SNA1. Such a grup culd als play an imprtant rle in educatin and cmmunicatin, as discussed belw. It will be imprtant fr MPI, as members f the grup, t prvide supprt and facilitate the wrk f the grup. Recmmendatins fr an advisry grup 99. The Grup recmmends that an advisry grup be established and its rle wuld include the fllwing, as might be amended by future reviews: (a) (b) (c) (d) (e) (f) (g) Respnsibility fr maintaining the SNA1 Management Plan as a living dcument; Encuraging, mnitring, and reprting n the implementatin f the recmmendatins made in this Plan; Prviding regularly updated infrmatin t the public, including annual reprts shwing trends, new infrmatin, and management pririties; Engaging with sectrs, via the representatives, t arrive at cnsensus n prpsed management ptins befre frmal cnsultatin; Assisting MPI in cmmunicating management ptins and decisins and the reasns fr them t stakehlders and the public; Advising the Minister and MPI n matters cncerning the management f SNA1, including advice n - i. Annual planning and priritisatin f research, cmpliance, and ther services; ii. Setting the TAC, TACC, and allwances; iii. Establishing supprting management measures (fr all sectrs) such as spatial cntrls, fishing-gear cntrls, MLS, and daily bag limits; iv. Mnitring tls t track the perfrmance f the Plan; v. Plan review and develpments. Prviding advice and recmmendatins t relevant management agencies and Ministers t achieve the purpse f the Plan. This will include: i. Advice and recmmendatins n the effectiveness f management measures that affect the SNA1 fishery; ii. Advice and recmmendatins n activities ccurring utside the SNA1 area if thse activities impact, r are likely t impact, n the SNA1 fishery; iii. Advice and recmmendatins n activities ccurring within the SNA1 fishery that are affecting assciated r dependent fish stcks; iv. Advice and recmmendatins n likely threats t the SNA1 fishery. Snapper (SNA1) Management Plan 34

36 100. Frmal terms f reference fr the advisry grup are required. The Grup recmmends the fllwing: (a) (b) (c) (d) (e) (f) Membership: wuld cnsist f an independent chair, 3 representatives frm each f the three fishing sectrs (Māri custmary nn-cmmercial, recreatinal, cmmercial), and 3 representatives frm MPI; the Minister culd als appint a suitably qualified member f the public in cnsultatin with the sectrs. Appintment: members wuld be appinted fr up t a 3 year term, with a maximum tenure f 2 cnsecutive terms. At the end f each term, ne member frm each sectr wuld be replaced t ensure cntinuity. Resignatin and replacement prvisins shuld be prvided. Members wuld be appinted by the Minister. Review: The structure, functins, and perfrmance f the advisry grup wuld be reviewed after 5 years. Meetings: wuld be held as required, within a maximum f 4 and minimum f ne meeting per year. The timing f meetings shuld align with the rutine reprting f scientific results (the Plenary Reprts) and the mnitring f catches t enable reprts that wuld facilitate timely cnsideratin in management respnses. Csts: MPI wuld facilitate the functining f the advisry grup, including administrative services, but a specific and apprpriate budget allcatin shuld be cmmitted by MPI. Cmmunicatin: The grup, with MPI assistance, wuld prduce reprts fr publicatin n MPI s website t satisfy the rle described abve. There wuld need t be an Annual Reprt t the Minister. Snapper (SNA1) Management Plan 35

37 Cmmunicatin and educatin Overview 101. The SNA1 fishery and its management have a histry f tensin between the sectrs and disagreement ver management measures. This was evident mre than ever in the respnse t the 2013 management review. T address this, the Minister called fr the Grup t be established s that the sectrs culd wrk tgether t develp the Plan fr managing SNA1 int the future The Grup recgnises the imprtance f ensuring that all stakehlders have a clear understanding f the Plan fr SNA1 and the way in which the varius management tls will wrk t deliver a fishery that will prduce enduring benefits fr all. Ownership f management decisins can be facilitated if representatives frm all sectrs are able t agree n management bjectives and ptins and explain the reasns fr them cllectively T deliver the desired utcmes, several f the measures prpsed in the Plan will rely n all fishers adpting relevant cdes f practice and guidelines. The better the understanding and acceptance f the ratinale fr the Plan there is, the mre likely fishers will adpt the measures. Effective educatin prgrammes will imprve cmpliance with existing rules, help prmte imprved fishing practices, and enhance understanding f hw the SNA1 fishery is managed. This will, in turn, imprve the benefits btained frm the snapper fishery fr all sectrs As a starting pint, the Grup acknwledges that sme existing educatin channels are wrking and shuld be reinfrced. These include MPI articles in fishing publicatins, MPI messages n best-practice fish handling and release fr recreatinal fishers, fish-measuring stickers, the NZ Fishing Rules App, and the POACHER htline. Educatin wrk will ften have a sectr-specific fcus, and each sectr has the pprtunity t derive benefit by taking wnership in the develpment and relaying f key messages t their respective cnstituents and the greater public. Alternative funding surces fr educatin wrk are likely t be needed Given the range f grups with an interest in SNA1, it is clear that sme wh fish in SNA1 are largely unrepresented by sectr-specific rganisatins. Many recreatinal anglers might nt be reached thrugh the standard cmmunicatin channels, perhaps because they are nn- English speaking, and ther fishers, while enjying their fishing, might simply nt wish t engage in fisheries management issues T address this, the Grup agreed that strng cmmunicatin and educatin initiatives will be required t prmte the Plan, with the recmmended nging advisry grup playing an imprtant rle. It is likely that new frms f cmmunicatin that are simple t understand and have greater utreach, might be needed, especially cnsidering the brad range f cmmunities and interests in the SNA1 area. Snapper (SNA1) Management Plan 36

38 Recmmendatins n cmmunicatin and educatin 107. The Grup recmmends that: (a) (b) (c) The Plan be prmted t fishers frm all sectrs, the general public, gvernment agencies including lcal gvernment, and ther Ministers. Prcesses fr engaging with interested parties and prviding fr their input n fisheries management be imprved t enable early input prir t the release f cnsultatin dcuments. The recmmended actins fr infrming and educating interested parties be undertaken by MPI within its brader cmmunicatins strategy, and Alternative funding surces fr educatin initiatives be explred; New frms f cmmunicatin and utreach shuld be develped and used t better reach the diverse cmmunities in the nrth, and particularly in Auckland; Research int educatin and cmmunicatin methds and target audiences shuld be cnducted; Any cmmunicatin and educatin initiatives shuld be mnitred t determine their effectiveness. (d) Fishers in all sectrs are prvided with educatinal material abut imprved fishing practices and their benefits, including Best-practice fishing methds, fish handling and release; Custmary fisheries management tls. (e) The advisry grup s rle shuld include develping and disseminating an annual reprt n prgress under the Plan, using the best infrmatin available, and ensuring that all relevant infrmatin used fr managing SNA1 be publicly available, subject t MPI s data release guidelines. Snapper (SNA1) Management Plan 37

39 Appendix A Minister s full determinatin 2013 Snapper (SNA1) Management Plan 38

40 Snapper (SNA1) Management Plan 39

41 Snapper (SNA1) Management Plan 40

42 Snapper (SNA1) Management Plan 41

43 Snapper (SNA1) Management Plan 42

44 Snapper (SNA1) Management Plan 43

45 Snapper (SNA1) Management Plan 44

46 Snapper (SNA1) Management Plan 45

47 Snapper (SNA1) Management Plan 46

48 Appendix B Grup members, alternates, and advisrs Grup members The Hnurable Sir Ian Barker QC Chair Māri custmary fishing Peter Duglas Te Ohu Kaimana Jhn Willmer Te Ohu Kaimana (alternate) Laws Lawsn Te Ohu Kaimana (alternate) Charlie Bluett Ngati Awa (Bay f Plenty iwi frum/mai I Nga Kuri a Wharei ki Tihirau) Kahuipani Petera Te Hiku Te Ika Fisheries Frum and Ngati Kuri Trust Bard Cmmercial fishing Eric Barratt fishing industry Jeremy Fleming fishing industry Dave Mre fishing industry Dr Jeremy Helsn fishing industry (alternate) Gregry Jhanssn fishing industry (alternate) Dr David Middletn fishing industry (alternate) Recreatinal fishing Keith Ingram recreatinal fishing Jhn Hldswrth recreatinal fishing Barry Trkingtn recreatinal fishing Trish Rea recreatinal fishing (alternate) Advisrs Science Dr Pamela Mace, MPI Dr Martin Cryer, MPI Dr Marc Griffiths, MPI Jeremy McKenzie, NIWA Alistair Dunn, NIWA Dr Richard Bian, NIWA MPI Fisheries Management and Plicy Steve Halley, Inshre Fisheries Manager Laura Furneaux, Team Manager, Inshre Fisheries Stuart Brdie Tim Persen Nick Jnes Graeme McGregr Jhn Tauntn-Clark Snapper (SNA1) Management Plan 47

49 Appendix C Distinctin between stchastic stck assessment mdelling and deterministic Yield-Per-Recruit mdelling The imprtance f uncertainty (stchasticity) in stck assessment mdelling Prcesses gverning maximum sustainable yield (MSY) in fish stcks are recruitment, grwth, natural lngevity (life span) and annual fishing mrtality (incidental and landed catch). Using mathematical representatins f these dynamics, fisheries assessment mdels attempt t describe the past, current and future status f a stck relative t sme predetermined target (e.g. 40% B0). A cnsideratin f uncertainty is an imprtant requirement fr mst stck assessments; the tw main frms f uncertainty being natural variability (e.g. recruitment success and grwth rates) and the difficulty f representing bilgical prcesses mathematically and estimating their parameters frm nisy data. Uncertainty in the key dynamics nt nly leads t uncertainty in the status f stck relative t a management target but als uncertainty in the measure f the target itself (e.g. 40% B0). Cnducting a stck assessment that incrprates uncertainty prvides insight as t the likely range f the status f the stck. In cntrast, running the mdel with all parameters fixed (knwn) typically prduces nly ne deterministic utcme, rather than the full range f pssibilities. Fr this reasn, a stck assessment based n deterministic mdelling (mdelling withut errr) has relatively limited utility. Investigating Yield-Per-Recruit using deterministic mdelling Althugh deterministic mdelling may nt be very infrmative fr stck assessments, the apprach can be useful fr cmparing the relative benefits f different harvest strategies thrugh a prcess termed yield-perrecruit evaluatin. Yield-per-recruit (YPR) analysis evaluates the trade-ff between leaving a fish in the water t grw and breed (gain in yield-per-recruit) against the risk f it dying thrugh natural causes (lss f yieldper-recruit). Using deterministic mdelling it is pssible t cmpare yield gains and lsses assciated with harvesting fish at different sizes r ages. Yield-per-recruit cmparisns require the mdel ppulatin t be in a steady-state, i.e. a state where the ppulatin is neither increasing nr decreasing such that lsses thrugh fishing and natural mrtality exactly balance gains thrugh grwth and recruitment. A fish stck in this state is said t be at equilibrium. In the real wrld it is virtually impssible t maintain a stck in an equilibrium state due t natural variatin in factrs gverning its prductivity. Because YPR relies n deterministic mdelling t derive an equilibrium state the abslute values f the YPR results are largely theretical. Therefre results are usually expressed as relative differences rather than abslutes; e.g. strategy A prduces an x% higher yield relative t strategy B. Snapper (SNA1) Management Plan 48

50 Appendix D Summary f Yield-Per-Recruit and Prjectin Mdelling Results Purpse f YPR simulatins The SNA1 Grup was interested in knwing what yield gains culd be expected thrugh imprving the survival f returned juvenile snapper, changing the minimum legal size (MLS) fr snapper, and changing the selectivity characteristics f the main snapper fishing methds. The grup was als interested in knwing whether yield gains assciated this these measures were sufficient t ff-set any need fr quta cuts. Deterministic yield-per-recruit mdelling was used t investigate the change in equilibrium yield assciated with varius harvest strategies. YPR mdel descriptin The mdel used fr the YPR simulatins was a length-based prxy f the age-based mdel used in the 2013 SNA 1 assessment, having similar grwth, mrtality and gear selectivity characteristics as the Hauraki Gulf sub-stck. The key differences between the YPR and SNA 1 assessment mdel are given in Table 1. Table 1: Key differences between the YPR and 2013 SNA 1 assessment mdels. YPR Hauraki Gulf prxy mdel single area (Hauraki Gulf characteristics) length based deterministic mdel runs dead discarded fish included in catch 2013 SNA 1 assessment mdel three area with mvement age-based stchastic mdel runs dead discarded fish nt included In the YPR mdel harvest was specified relative t fur fisheries in the mdel: 1. Cmmercial lngline (LL) 2. Cmmercial single trawl (ST) 3. Cmmercial Danish seine (DS) 4. Recreatinal line (REC) Mdel estimates f yield represented the ttal weight f fish LANDED by each f the fur methd fisheries. The weight f discarded dead fish (discard mrtality) was accunted fr in the mdel but did nt cntribute t the measure f yield. Since snapper are knwn t have different vulnerabilities t fishing gears depending n their length, it was critical that the YPR mdel accmmdated the different selectivity characteristics f the varius fishing methds. The selectivity characteristics f each fishery in the mdel can be represented as a curve f relatively selectivity by length (Figure 1). Snapper (SNA1) Management Plan 49

51 Prprtin At-sea Landing Length (cm) Figure 1: Selectivity curve fr the recreatinal line fishery. The blue line shws the ttal selectivity f the methd by length. Frm the graph it can be seen that 25 cm snapper are 100% (1.0) selected whereas 60 cm fish are prly selected. The dtted green line shws the selectivity relative t a 30 cm MLS. A high prprtin f snapper less than the MLS are selected by this methd implying that a large prprtin f the snapper taken by recreatinal line are likely t be returned t the water. The mdel selectivity curves fr each methd are given in Figure 2, with the blue lines denting the ttal atsea selectivity and the black lines shwing the prprtin f fish discarded under the MLS that are likely t have died. The YPR results were tabulated relative t the status qu scenari i.e. the current cmmercial and recreatinal MLSs (25; 30 cm) and current assumed levels f discard mrtality f 100% fr cmmercial Danish seine and trawl and 10% fr cmmercial lngline and recreatinal line (Figure 2). Figure 2: Selectivity curves fr the fur main fishing gears. The blue lines dente the ttal at-sea selectivity and the black lines shw the prprtin f fish discarded under the MLS that are likely t have died. The yield statistics derived fr each harvest strategy pertain t the stck at the target f 40% B0 with the relative landed catch cmpnent by fishing methd being: Cmmercial lngline : 25 % Cmmercial Danish seine: 17.5 % Snapper (SNA1) Management Plan 50

52 Cmmercial single trawl: 17.5 % Recreatinal line : 40 % Simulatin results 1. Changing MLS and single trawl and Danish seine discard survival The first set f mdel runs investigated equilibrium yield gains and lsses at 40% B0 relative t changing the cmmercial and recreatinal MLS in cmbinatin with reducing the discard mrtality fr Danish seine and single trawl t 10% (i.e. the level currently deemed t be ptentially achievable with the new PSH trawl gear). Results: Changing the recreatinal MLS up r dwn resulted in minimal yield gains (< 2%; Table 2). Increasing the MLS fr the cmmercial fisheries t 30 cm but nt reducing the discard mrtality f Danish seine and trawl resulted in a net lss f yield f the rder f 6% (Table 2). Reducing Danish seine and single trawl discard mrtality t 10% resulted in a ~ 4% gain in yield at the 25 cm MLS, with increases t ~ 8% if the cmmercial MLS is raised t 30 cm (Table 2). Table 2: Differences in ttal yield relative t the status qu scenari fr different cmbinatins f MLS and discard mrtality. Cmm Recreatinal MLS (cm) Scenari MLS % DS and ST mrtality belw MLS % SQ 1.4% % -5.7% -4.3% 10 % DS and ST mrtality belw MLS % 3.6% 5.0% % 7.7% 9.2% 2. Changing the selectivity characteristics f Danish seine, single trawl and recreatinal line YPR simulatins were undertaken t examine the effect f shifting the selectivity characteristics f Danish seine, single trawl and recreatinal line methds twards catching larger fish and way frm catching smaller fish; i.e. right shifting the selectivity curves given in Figure 2. Tw types f selectivity shift were investigated in the simulatins. The first shift-type invlved mving the length at maximum selectivity t 30 cm and thereby effectively shifting the whle curve t the right ( rightshift blue lines in Figure 3). Fr the secnd shift type nly the length at maximum selectivity and the left hand side f the selectivity curve were shifted, nt the right hand side f the curve ( mde-shift red lines in Figure 3). Again yield cmparisns were made relative t the status qu scenari at 40% B0. Snapper (SNA1) Management Plan 51

53 Figure 3: Plts shwing the effect f tw types f selectivity shifts n the status qu selectivity curves. The blue line is a simple lateral shift t a 30 cm maximum selectin (right-shift). The red line is a shift t 30 cm but n shift in the right hand side f the curve (mde-shift). Results: Right shifting the selectivity curves fr Danish seine, trawl and recreatinal fisheries achieved an 18-20% gain in yield at 40% B0 (Table 3); slightly less yield was achieved (17-19%) when the cmmercial MLS was raised t 30 cm with the Danish seine and trawl mrtality remaining at 100% (Table 3). Right shifting selectivity and reducing Danish seine and single trawl mrtality t 10% resulted in virtually n yield imprvement ver the 100% mrtality scenari; a slight gain in yield (~ 4%) was achieved under a 30 cm cmmercial MLS (Table 3). Yield gains were mre mdest (7-9%) if nly the mde and left hand selectivity was shifted (mdeshift Table 3); reducing Danish seine and trawl mrtality resulted in minimal imprvement in yield (~ 3%) at an MLS f 30 cm (Table 3). Yield gains f the rder f 35% were achieved by right shifting the recreatinal selectivity, mving the entire cmmercial fishery t the equivalent selectivity and discard mrtality levels fr lngline, and increasing the cmmercial MLS t 30 cm (Table 3). Snapper (SNA1) Management Plan 52