Chapter Two: Skipjack Tuna June 2009

Transcription

1 Chapter Two: Skipjack Tuna June 2009

2 TABLE OF CONTENTS ERROR! BOOKMARK NOT DEFINED.II CHAPTER TWO: SKIPJACK TUNA 1.0 Introduction Error! Bookmark not defined Overview Draft for discussion Error! Bookmark not defined Fishery goals and objectives Error! Bookmark not defined Fishery Goals Error! Bookmark not defined Component objectives Error! Bookmark not defined Assessment of current performance against objectives Error! Bookmark not defined Ecosystem goals Ecosystem goals and contributing objectives Assessment of current performance against objectives Use and value goals Use and value goals and contributing objectives Assessment of current performance against objectives Management goals Management goals and contributing objectives Assessment of current performance against objectives Achieving objectives s required 6.2 Indicative timeline ii

3 CHAPTER TWO: SKIPJACK TUNA 1.0 INTRODUCTION 1.1 Overview The western and central Pacific Ocean supports the largest tuna fishery in the world in terms of tonnage caught. The fisheries target four main species-skipjack, yellowfin, bigeye and albacore tuna. Three quarters of this catch is from the purse seine fishery targeting skipjack tuna. The are also target fisheries for bigeye yellowfin and albacore tuna. Because of large volumes of catch skipjack has high commercial value. While skipjack is the lowest value of the tuna species the fishery has a high value because of the large catches of this species. The New Zealand purse-seine fisheries for skipjack can be divided into two main components: a tropical component that operates throughout the year in equatorial waters, and a subtropical component that extends seasonally into New Zealand fisheries waters. New Zealand has commercial interests in both components of the skipjack fishery. The speciesskipjack is also sought by recreational fishers and of interest to gamefishers as the presence of skipjack schools is associated with billfish. Maori too traditionally fished in both nearshore and offshore locations, and had fishing equipment that would have been well suited to fishing for tunas. Development of this plan has tried to bring together all these user groups, along with others who value the marine ecosystems in which skipjack is found. More background information on the characteristics of the skipjack fishery including biology, use, and management can be found in the Current Situation document on the fisheries plan website: 1

4 2.0 ECOSYSTEM GOALS 2.1 Ecosystem goals and contributing objectives Goal 1 Implement an ecosystem approach to fisheries management, taking into account associated and dependent species including predator/prey relationships A B Avoid, remedy, or mitigate theany adverse effects of fishing on associated and dependent species, including through maintaining foodchain relationships Review management of bycatch species in accordance with WCPFC CMMs and against FAO best practice guidelines where available Goal 2 Maintain a sustainable fishery for skipjack within environmental standards BA CB DC AA Set and periodically review stock size objectives for skipjack to be used as a basis for NZ negotiations in international fora Promote stock size at or above B MSY to prevent range contraction and taking into account interdependence of associated species Review sustainability triggers for the possible inclusion of skipjack into the QMS need for more active management of skipjack within NZ Fisheries waters Ensure any fishing under provisions of the US Tuna Treaty is within sustainable limits Goal 3 Apply a risk management approach to mitigating incidental catches of protected and / or prohibited utilisation species mitigation A B Minimise bycatch of protected species in skipjack fisheries, including the bycatch of any species at particular risk Encourage uptake of best practice handling / release practices for bycatch of protected and prohibited utilisation species in all fisheries including non-commercial fisheries Goal 4 Protect, maintain, and enhance fisheries habitat A Identify habitats of particular significance to skipjack (such as feeding and nursery areas), in particular within New Zealand waters Goal 5 Monitor skipjack aquaculture development A Keep a watching brief on skipjack aquaculture development 2

5 2.2 Assessment of current performance against objectives Goal 1 Implement an ecosystem approach to fisheries management, taking into account associated and dependent species including predator/prey relationships Objective 1A): Avoid, remedy, or mitigate theany adverse effects of fishing on associated and dependent species, including through maintaining foodchain relationships Limited work has been done in this area, although some diet studies have been doneconducted. These studies indicate skipjack consume various species of fish, crustaceans, fish and cephalopods and that the relative proportion of these prey varies with the size of skipjack-. the smaller skipjack found in NZ waters appear to predominantly feed on crustaceans. Adult skipjack are thought to have few natural predators apart from larger tunas and to a much lesser extent sharks. Unknown Not specified Objective 1B): Review management of bycatch species in accordance with WCPFC CMMs and New Zealand fisheries law Purse seiners set on a variety of school types or associations, ranging from schools associated with natural floating objects and FADs. Sets are also made on tuna schools not associated with floating objects, ie free-swimming schools. In the context of this plan the prevalence of fishing on associated schools is mostly in western tropical waters and that on free-swimming schools in NZ fisheries waters These associations largely determine the quantity and kinds of by-catch in the fishery. For example although there are no concerns at present relating to the status of the skipjack WCPO stock, there are concerns that current purse seine effort in the equatorial Pacific targeting skipjack is adversely affecting bigeye and yellowfin tuna. Accordingly, a variety of input controls have been imposed on the tropical purse seine fishery in order to minimise bycatch of juvenile bigeye. However rather than impose these controls during the 2009 year, New Zealand has decided to more directly reduce its purse seine catch of bigeye by utiliseing the high seas alternative provisions contained in paragraphs of WCPFC CMM To utilise this alternative to the measure New Zealand intends to ensure that bigeye tuna catch by New Zealand flagged purse seine vessels is at least 10% lower than earlier reported catch. This equates to a catch limit of 541t for Output based 3

6 management is preferred by New Zealand because it is directly targeted at the fisheries management objective at hand in this case restricting the fishing mortality of juvenile bigeye tuna in the tropical purse-seine fishery. In the tropical fishery there is bycatch o f various shark species. WCPFC conservation and management measure requires vessels to have on board fins that total no more than 5% of the weight of sharks onboard, up to the first point of landing. This can be achieved either by applying the 5% ratio, or by requiring vessels to land sharks with fins attached to the carcass. In New Zealand fisheries waters only very small amounts of bycatch are reported. Bycatch species such as bigeye tuna, yellowfin tuna, swordfish, moonfish, Ray s bream, mako shark, porbeagle shark and blue shark are managed within the QMS. A TAC is set for each of these species and within the TAC allowances are made for recreational, customary, other forms of mortality and commercial catch. The total allowable commercial catch (TACC) is allocated as individual transferable quota which in turn generates an annual catch entitlement (ACE) apportioned to commercial fishers. Medium.- New Zealand bycatch is a small proportion of the fishery. The tropical bycatch of bigeye is an important issue which is being actively managed. Low - Within New Zealand Fisheries waters fish species bycatch is much less an issue than in the Tropics and is actively managed - primarily within the QMS - MFish will monitor by port sampling the bigeye catch of New Zealand purse seine vessels fishing the high seasbetween 20 o N and 20 o S during If the bigeye catch limit is reached, vessels will be instructed to either cease fishing on the high seas between 20N and 20S or, if there is an observer on board, to cease fishing on FADs - All New Zealand vessels fishing the High Seas must comply with applying the 5% ratio, or by requiring vessels to land sharks with fins attached to the carcass. - DomesticWithin New Zealand Fisheries waters catch limits for most bycatch species are set at sustainable limits and monitored through the QMS. TACCs for HMS sharks are set at thea level ofto support bycatch fishing only Annually monitor shark catches, including QMS data and available observer data (e.g. size composition; discard rates), target fishery catches, and landed states Implement any actions relating to juvenile tuna bycatch e.g. FAD management plan; catch retention plan required from

7 Goal 2 Maintain a sustainable fishery for skipjack within environmental standards Objective 2A: Set and periodically review stock size objectives for skipjack to be used as a basis for NZ negotiations in international fora Explicit targets and limits for skipjack managed under WCPFC have not been set either nationally or internationally. The WCPFC Convention provides for members of the Commission to determine stock-specific reference points and the action to be taken if they are exceeded (Article 6(1)(a)). This provision has not yet been implemented. The Convention text also outlines that measures should be adopted to ensure long-term sustainability of highly migratory fish stocks in the Convention Area and promote the objective of their optimum utilization (Article 5(a)). Such measures should be designed to maintain or restore stocks at levels capable of producing maximum sustainable yield, as qualified by relevant environmental and economic factors (Article 5(b)). Having specific targets and limits in place may make negotiations more straightforward, because there would be less scope to argue about whether or not management action is required for a particular stock (i.e. the need for management action would be determined by its stock status). There would also be scope to explore the costs and benefits of managing at different stock levels. Fishing patterns can also influence the available yield from a fishery. For example, harvesting juvenile bigeye and yellowfin tuna as bycatch in the skipjack fishery decreases the available yield from this fishery, although it potentially increases the catch of skipjack (i.e. the maximum sustainable yield that could be achieved from the bigeye fishery would be higher if the fishery were largely based on mature fish caught by longline). This sort of analysis therefore makes clear the trade-offs involved between different fishing methods. Medium -NZ identifies stock management targets and limits for key HMS for skipjack that areis consistent with the Harvest Strategy Standard -- WCPFC and CCSBT: identify targets and limits by 2012 Identify targets and limits for skipjack within NZ Fisheries waters by 2012 or as required by WCPFC 5

8 Objective 2B: Promote stock size reference points at or above B MSY to prevent range contraction and to take into account interdependence of associated species Explicit targets and limits for HMS managed under WCPFC have not been set either nationally or internationally. The WCPFC Convention provides for members of the Commission to determine stock-specific reference points and the action to be taken if they are exceeded (Article 6(1) (a)). This provision has not yet been implemented. Maintaining the stock size of skipjack in the WCPO above that required to support the maximum sustainable yield is likely to be in New Zealand s best interests. There is a significant risk that stocks retract their range as they decline. New Zealand will advocate for sustainability, and the adoption of reference points that maintain the current distribution and range of skipjack. Medium - NZ identifies stock management targets and limits for skipjack that are consistent with the Harvest Strategy Standard -WCPFC identify targets and limits by 2012 Identify and advocate for targets and limits for skipjack within the Western and Central Pacific Convention area by Objective 2C: Review sustainability triggers with regard to more active management measures in New Zealand Fisheries waters New Zealand fisheries law provides options for sustainability measures relating to catch limits, size limits, biological state, fishing seasons, method restrictions, closed areas, and daily bag limits. Another option is to introduce skipjack into the QMS. TOf these options the QMS is the Governments preferred management regime for skipjack in New Zealand fisheries waters in the long term. Pacific wide the fishery is not limited by sustainability concerns and there is some potential for further development in the skipjack fishery within New Zealand fisheries waters. However, domestically there is the added complication of varying amounts of fish being available to the fishery from year to year. Low: While the QMS is the preferred management regime there are currently no sustainability concerns. 6

9 Relevant statutory considerations as to whether a stock or species may be introduced to the QMS are contained in the QMS Introduction standard and include: - Whether existing management is maintaining the potential of the stock or species to meet the reasonably foreseeable needs of future generations - Whether existing management avoids remedies or mitigates any adverse effects of fishing for the stock or species on the aquatic environment Annually assess the need for further management within New Zealand fisheries waters required to support WCPFC CMMs Assess skipjack against QMS standard as required Objective 2D: Ensure any fishing under provisions of the US Tuna Treaty is within sustainable limits The US Tuna Treaty (USTT) provides for access to licenses for up to 40 U.S. purse seiners, with an option for 5 additional licenses reserved for joint venture arrangements, to fish for skipjack in the EEZ s of Pacific Island Parties including New Zealand. The agreement was last ratified in March 2002, when the Parties agreed to extend the related Economic Assistance Agreement between the United States, the FFA and Pacific Island states, for a term of 10 years. Preparation for renegotiation of the Treaty is to commence in July 2009 Medium- US vessels have neither fished nor indicated an intention to fish New Zealand fisheries waters for some time. - Maintain a watching brief on fishing pursuant to the Treaty - Maintain a watching brief on any re-negotiation of the Treaty. Monitor and decide on applications made under the USTT to fish in NZ Fisheries waters Monitor the renegotiation of the USTT Goal 3 Apply a risk management approach to protected species mitigation, incorporating strategies to manage both spatial and seasonal risk Objective 3A): Minimise bycatch of protected species in skipjack purse seine fisheries, including the bycatch of any species at particular risk Specific measures are in place to minimise bycatch of marine 7

10 mammals by requiring use of escapement panels in purse seine nets (Marine Mammals Protection Act 1978) and by observing a code of practice. The current approach to minimising turtle bycatch is to focus on maximising chance of survival for any turtles that are caught during fishing (such captures are rare). However tturtles may be caught in purse seine nets from time to timeurtle bycatch is of particular interest to some member countries of WCPFC. Further work will be required in the future on minimising the risk of interactions with turtles and ensuring best practice is used in the releasing of turtles. Implementation of a code of practice is proposed.a code of practice has been developed that outlines appropriate ways to avoid either turtle captures or to maximise their chance of survival if caught. Sea birds are often associated with fish schools but in general are not interested in purse seine fishing operations and accordingly are not considered further in this plan. Other species such as sharks may also be caught from time to time during purse seine operations, particularly in the tropical fishery. Some of these species (e.g. great white sharks) are prohibited species. Purse seine fleets that operate in the Western equatorial Pacific are required to do so under a FAD management plan as of 1 July One aspect of the FAD management plan is the objectives of minimising the catch of unwanted and or protected species. Marlins are also an occasional bycatch of purse seine operators in domestic waters. Low - Medium Current impacts of fishing for skipjack on protected species is low. However, there is increasing International pressure to minimise the risk of fishing impacts on marine mammals and turtles. Certain species of sharks, including species more commonly caught by purse seining eg pelagic stingrays and mantas may be added to the protected species list. A prohibited utilisation standard will not be developed for several years. In the meantime there is a need to maintain a watching brief on international processes that identify species at risk (e.g. CITES, CMS). - Fishers record all interactions with non fish protected species as required on non-fish bycatch forms - Bycatch of turtles does not exceed a minimal level (to be specified by WCPFC science committee in 2009) - Fishers Iimplementation of the NZFIB code of practice for avoiding turtles - Review code of practice for avoiding marine mammals -Review species management in accordance with the prohibited utilisation standard (as appropriate) -Implement appropriate actions of FAD management plan 8

11 Monitor observer data and records of catch on non-fish bycatch forms Record all signatures of parties to the NZFIG code of practice Review the code of practice for avoiding marine mammals (as appropriate) Review species management in accordance with the prohibited utilisation standard (as appropriate) Implement appropriate actions of the FAD management plan as explained in the text above. Objective 3B): Encourage uptake of best practice handling / release practices for bycatch of protected and prohibited utilisation species in all fisheries including non-commercial fisheries A code of practice for marine mammals has been developed by SeaFICIndustry. A draft code of practice covering turtles is being developed by MFish and NZFIG Low-medium (work is on-going) Implementation appropriate actions of the Turtle Code of Practice based on FAO guidelines or better. Review and implement the Industry code of practice for handling and releasing marine mammals and in accordance with best practise and the Marine Mammal Protection Act Record all signatories of parties to the revised Industry code of practice Goal 4 Protect, maintain, and enhance fisheries habitat Objective 4A: Identify habitats of particular significance to skipjack (including feeding, and nursery areas), in particular within New Zealand waters Limited information is available at present on such habitats within NZ waters. One interpretation of why young skipjack undertake a long and taxing migration is the substantial concentrations of food such as krill (Nyctiphanes) in New Zealand waters. The distribution of krill in New Zealand fisheries waters may well help to explain the distribution of skipjack but is likely to be affected by a range of factors. Unlikely to be a priority for future work unless the New Zealand distribution of skipjack changes dramatically. as the importance of these factors in New Zealand fishery waters is likely low relative to elsewhere in the WCPO. Low 9

12 Feeding and nursery areas are described for skipjack Possible desk top study to evaluate available information Goal 5 Monitor HMS aquaculture development Objective 5A: Monitor HMS aquaculture development, its potential, and potential for disease transfer and stock depletion This objective requires a watching brief on aquaculture development. Low - MFish and stakeholders aware of proposals for aquaculture development likely to affect HMS either directly or indirectly. - Information is shared between advisory group members and MFish - plan developed where direct impact is likely. Maintain watching brief on any aquaculture proposals in NZ waters and overseas 10

13 3.0 USE AND VALUE GOALS 3.1 Use and value goals and contributing objectives Goal 1 Maintain a viable and profitable skipjack fishery for New Zealand fishers in domestic and tropical waters A B C D E Negotiate favourable country allocations for New Zealand fishers Review utilisation triggers for the possible inclusion of skipjack into the QMS need for more active management of skipjack within New Zealand fisheries waters Achieve economic catch rates for skipjack (to the extent possible) Devise incentives to add value to the fishery eg alternative fishing methods and /or reduce wastage. Ensure cost efficient delivery of required services for skipjack Goal 2 Maintain /enhance recreational fishing for skipjack in New Zealand fisheries waters A Maintain / enhance recreational catch rates Goal 3 Develop rules for delivering fair opportunity of access (a fair crack of the whip) A Identify the interaction between recreational and commercial fishing (including areas of spatial overlap) B Develop a process for resolving conflict and implement any outcomes Goal 4 Maintain intrinsic values of skipjack including their value to ecosystems as prey and predators A Define the intrinsic values of skipjack including their value to ecosystems as prey or predators Goal 5 All Maori interests (including customary, commercial, recreational and environmental) are enhanced Maintain the cultural value of the Treaty of Waitangi Fisheries Claims Settlement A Take into account the unique differences between individual iwi and their hapu in management of skipjack. Document and encourage understanding of cultural values of the Treaty of Waitangi Fisheries Claims Settlement 11

14 B Ensure abundant skipjack for customary use 3.2 Assessment of current performance against objectives Goal 1 Maintain a viable and profitable skipjack fishery for New Zealand fishers in domestic and tropical waters Objective 1A): Negotiate favourable country allocations for NZ fishers There is currently expansion potential in the New Zealand fishery at least in some years. The subtropical fishery targets free (unassociated) schools not affected by bycatch limits., however the potential for Iincreased yields needs to be balanced against dissipating returns per vessel. The WCPFC has for future allocation of rights in the fishery, but the current focus of the commission (with limited exception) is the implementation of effort controls. It is problematic for New Zealand needs to ensure that any measures not only reflect our national interest but are also compatible with New Zealand law and a preference for output controls in the long term. New Zealand is engaged with the WCPFC to ensure management measures to address the bycatch of bigeye and yellowfin in the tropics are compatible with both the outcomes desired and New Zealand interests. Maintain aaccess to tropical purse seine fishery could be maintained by negotiating bilateral / multilateral and memorandum of understanding access agreements with Pacific Island states. New Zealand is engaged with the WCPFC to ensure management measures to address the bycatch of bigeye and yellowfin in the tropics are compatible with both the outcomes desired and New Zealand interests. Take into account tfishing in New Zealand fisheries waters under the he implications on current operators of US Tuna Treaty fishing in New Zealand fisheries watersalso has potential implicationsfor competitive effects on New Zealand fishers. These are currently mitigated by voluntary arrangements not part of the Treaty itself but a requirement of New Zealand license arrangements. Medium there are increasing and competing interests for access/allocation of skipjack in the WPO - Subject to sustainability, take advantage of available yields within New Zealand fisheries waters without dissipating yields per vessel 12

15 - Ensure any effort or technical measures implemented by WCPFC are targeted, effective and compatible with New Zealand s management framework - Promote output based country allocations for skipjack - Contribute to providing input into United States Tuna Treaty negotiations. Ensure any effort or technical measures implemented by WCPFC are targeted, effective and compatible with New Zealand s management framework Contribute to providing input into United States Tuna Treaty negotiations. Objective 1B): Review utilisation triggers for the possible need for more active management of skipjack within NZ Fisheries waters for the possible inclusion of skipjack into the QMS The existing management framework may not be ideal to promote orderly development of the fishery. For example, investment might be hindered because of uncertainty in relation to future allocation of rights. However there are not always fish to go around and increasing the number of vessels may reduce the fish available to each vessel. The Governments preference is for the QMS as a long term management arrangement. Medium Relevant statutory considerations as to whether a stock or species may be introduced to the QMS are contained in the QMS Introduction standard and include: - Whether existing management provides for utilisation that enables social, cultural, and economic well-being. Any alternative management arrangement would need a similar focus. Assess skipjack against QMS standard as and when required Objective 1C): Achieve economic catch rates for skipjack to the extent possible The cost of fuel and the value of the NZ dollar in relation to the cannery price are outside of direct fisheries management control. The rise in fuel costs is a global problem for purse seining. The recent closure of a cannery in American Samoa may increase delivery costs. However there have been some adjustment in revenue (due to price increase and the fall in the 13

16 $NZ) to offset this increased cost of fishing. Nevertheless strategies to promote fuel efficiency, to improve the delivery of product to market, and to increase the quality management of both target and bycatch species should be encouraged. Another key determinant is the catch per unit of effort of skipjack in New Zealand fisheries waters which is associated with seasonal availability and the status of the stock throughout its range. There is a need for active participation in WCPFC to ensure that the fishery remains at profitable levels. Maintaining catch rates is likely to encourage investment in the New Zealand fishery and also provide for the non-commercial interests in the fishery. Medium the profitability in the fishery is currently good and at little risk of being limited by sustainability concerns. Risks to the utilisation of skipjack in tropical waters due to bycatch concerns are being actively managed.medium - catch rate per set for target species is at economic levels: - New Zealand investment in domestic tuna fisheries Monitoring of key economic indicators in the fishery Monitoring of fishery catch rates Objective 1D): Devise incentives to add value to the fishery eg alternative fishing methods and reduce wastage. Troll / pole techniques are used elsewhere to land better quality product. The application of this technique to New Zealand conditions is largely untested. Wastage of skipjack can occur through a skunk shot that although unsuccessful in netting fish results in fishing related mortality. Spoilage may be caused by gear failure or through problems with storage that affect the quality of the catch. Tuna may also be discarded by the cannery because they are too small (typically <1.4Kg), are soft or smashed or the vessel has been too fully loaded. While some sources of wastage are unavoidable others are not. The WCPFC will require implementation of a catch retention rule coupled with 100% observer coverage from It is important that provision exists for the release of fish prior to nets being brought alongside the vessel so that conservation benefits can be realised by the release of unwanted fish. Low -Medium - Increased value of landed catch -Reduced amounts of reported discards -Reduced amounts of observer reported discards 14

17 - Reduced amounts of cannery discards Advocate for a release policy within catch retention conservation measure. Objective 1E): skipjack Ensure cost efficient delivery of required services for Costs are levied against a fishery (either as generic costs or as fishery specific costs) as a whole and in the case of non-qms fisheries such as skipjack, and most of the bycatch species, average catch is used to determine the generic component of the levy based on a value index. Specific research costs are allocated directly to the fishery. Levies are charged for target and bycatch species. Directed services need to be assessed to ensure they are cost effective and efficient. This fisheries plan should provide an opportunity to target spending in areas most likely to achieve objectives of the plan. If skipjack was to be introduced into the QMS then generic levy charges would be derived from a combination of TACC and port price. If the TACC were to be set at a level greater than average catches then the levy over time would attract a larger proportion of the costs than the method currently used. This effect could be mitigated by setting a variable TACC that could be raised in season in the event of increased availability of skipjack. Medium the profitability in the fishery is currently good and at little risk of being limited by sustainability concerns. Risks to the utilisation of skipjack in tropical waters due to bycatch concerns are being actively managed. Low - ratio of levies to returns from fishery is favourable - required amount of services is acceptable to stakeholders - track cost recovery levies over time Annually track cost recovery to determine whether or not changes are required If necessary promote amendments to cost recovery rules 15

18 Goal 2 Maintain /enhance recreational fishing for skipjack in New Zealand fisheries waters Objective 2A): Maintain / enhance recreational catch rates Skipjack is sought after by recreational fishers as a light tackle sport fish and for bait. Recreational catch rates are dependent onheqavily influenced by the availability of skipjack in New Zealand waters, which depends in turn on both stock abundance, and oceanic conditions that influence availability in sub tropical waters from year to year. Recreational fishers have also argued that their catches are affected by domestic purse seine fisheries for skipjack. Medium. Recreational catch rates vary by season. Factors influencing variation in availability of skipjack should be investigated. - Landed catch from NZBGFC records and harvest estimates from National Marine Fishing Surveys used to monitor trends across years - Subject to seasonal variation, recreational catch rates reported in NZBGFC club records are considered satisfactory by the sector Monitor skipjack catches from National Marine Fishing Surveys, club records and anecdotal accounts. Goal 3 Develop rules for delivering fair opportunity of access (a fair crack of the whip) Objective 3A): Identify the interaction between recreational and commercial fishing (including areas of spatial overlap) The following elements of conflict have been identified: Non commercial first on the school but purse seine set undertaken anyway; Industry first on school but fishing disrupted by the presence of non commercial vessels The concept that yellowfin distribution is reliant on the presence of skipjack but probably not affected by skipjack fishing and if so, fishers need to be educated about this lack of association. The concept that skipjack provides the major food source for big gamefish General communication / education need for agreed use of VHF channels (perhaps based on Coastguard defined working frequencies). 16

19 Misconceptions / underlying attitudes further information required on behaviour of schools and the role of skipjack in the ecosystem. Purse seine agreements between commercial and recreational fishers have been negotiated in areas of inter-sector conflict, including inshore areas identified as preferred recreational fishing areas, and seasonal closures during yellowfin tournaments in the eastern Bay of Plenty. The New Zealand Gamefish Tagging program compiles a record of gamefish tagged and released by members. These records may be used to identify areas of importance to gamefishing. High Potential areas of overlap of interaction between sectors are identified. - aerial sighting data base be revisited to identify patterns of skipjack distribution. - identify areas where gamefish concentrate and to identify areas of importance to purse seining. - identify interactions of purse seining on gamefishing using historic club records and purse seine effort data. develop guidelines so purse seiners and recreational fishers avoid initiating a conflict. - develop a code of practice to address multi school / multi sector interactions. Revisit aerial sighting data base to identify patterns of skipjack distribution in more detail. Identify areas where gamefish concentrate from the Gamefish tagging programme and from historical club records. Identify key factors influencing the distribution of the main HMS gamefish species Document distribution and trends of the fishery for yellowfin tuna Objective 3B): outcomes Develop a process for resolving conflict and implement A recent meeting in Whakatane identified the need to develop process and strategies to avoid inter-sector conflict. Industry prefers that any such process be developed within the context of this fishery plan. MFish suggests a suitable process for resolving conflict could be developed from assessment of the following: Is the issue significant 17

20 What is the cost of solution Comparison with other examples eg Pacific bluefin game fishery interacting with the Hoki trawl fishery. What is safe practice (including MSA rules) High - A process is set up to resolve inter-sector conflict as required - Agreement on lasting rules that apply to the sectors to mitigate the potential for conflict. Establish a process to identify and manage any areas of intersector conflict as required Develop guidelines to assist purse seine operators and recreational fishers from initiating a conflict. Develop and implement a code of practice to address multi school / multi sector interactions. Goal 4 Maintain intrinsic values of target, non-target, and associated species Objective 4A): Define the intrinsic values of skipjack including their value to ecosystems as prey or predators Management focuses on extractive uses of skipjack (as determined by the Fisheries Act). However, non-extractive or intrinsic aspects are also of value to people. This objective could include recognition of the value of protected species and ensuring that populations of threatened species are not adversely affected by the skipjack fishery. Low - Awareness of non-extractive values of skipjack amongst officials, fishers and the public Initiate a desk top study of the role of skipjack in the environment based on existing scientific literature 18

21 Goal 5 All Maori interests including customary, commercial, recreational and environmental are enhanced Maintain the cultural value of the Treaty of Waitangi Fisheries Claims Settlement Objective 5A): Take into account the unique differences between individual iwi and their hapu in management of skipjack Document and encourage understanding of the cultural values of the Treaty of Waitangi Fisheries Claims Settlement in relation to HMS To date, little information has been collected within the plan on specific relationships of iwi with skipjack (e.g. species that are of particular importance in some regions). Initial discussions during fish plan development covered: - Ecosystem and habitat values; - Accessibility of fish for customary purposes; - The relationship between Maori and the Crown; - Values attached to specific areas and species (e.g. breeding grounds); - The relationship with other peoples throughout the Pacific who also use these resources; - Customary practices associated with various species e.g. the use of mako teeth for gifting or exchange High. If each Iwi (and their hapu) with a relationship with skipjack does not have opportunity to provide for their unique situation in any given plan they may not endorse or participate in the plan or its implementation.medium-high - - Relationships of individual iwi with skipjack identified. - The number of iwi (and their hapu) with special relationships with skipjack who accept and endorse the plan. - The number of iwi (and their hapu) with special relationships with skipjack who participate in the implementation of the plan. Implement project to identify specific relationships of iwi with skipjack (see large pelagics plan) Identify how to incorporate specific iwi interests into management of skipjack Provide opportunities for Maori to share knowledge and build relationship between people and HMS through Wananga (as required/appropriate) 19

22 Objective 5B): Ensure abundant skipjack for customary use This objective relates both to overall availability of skipjack (covered under other objectives), and also to customary access to these species. Many iwi have a focus on inshore species at present when setting rohe moana boundaries, and as such some rohe moana may extend into areas in which skipjack are infrequent visitors. Medium - Iwi take into account any interests in skipjack (as appropriate to individual iwi) when setting rohe moana boundaries. 20

23 4.0 MANAGEMENT GOALS 4.1 Management goals and contributing objectives Goal 1 Recognise and provide for Treaty and Deeds of Settlement obligations A Implement Deeds of Settlement as required Incorporate customary perspectives into management Goal 2 Influence international fora and ensure NZ domestic interests are taken into account A Build strong relationships with other indigenous cultures within the Pacific RimIsland County ries, and with distant water fishing nations B Clearly identify NZ domesticstakeholder interests Goal 3 Effective research and data capture for monitoring and assessment of skipjack fishing and the environment A Improve the reporting framework for high seas fishing B Set and review non-commercial allowances when required CB Use fisher reporting to estimate captures of protected species, supplemented by a baseline of observer coverage of at least 10% of catch and effort in each fishery Goal 4 Cost effective and effective compliance regime A Develop a compliance strategy for skipjack Goal 5 Flexible and responsive approach to engaging with stakeholders and making decisions A Promote responsive communication and understanding between fishers, NGOs, iwi, managers and researchers Goal 6 Commercial and non-commercial fishers and the public Stakeholders are well aware of and understand the rules governing fishing for skipjacks A B Ensure the public is confident that bycatch is well managed in pelagic longline fisheries Ensure arrangements for foreign vessels with respect to availability of quota species and knowledge of local area closuresfishing companies that use foreign charter vessels ensure vessels have 21

24 4.2 Assessment of current performance against objectives Goal 1 Recognise and provide for Treaty and Deeds of Settlement obligations Objective 1A): Incorporate customary perspectives into management To date, engagement between MFish and customary fishers has focussed more on inshore finfish and shellfish, where there is more direct interest in the fisheries. Medium. Development of the fisheries plan has provided some scope for further involvement. - Plan reflects customary perspectives Objective 1A): Implement Deeds of Settlement as required Deeds of Settlement with individual iwi are listed in Appendix A of this plan. To date, no Deeds of Settlement include specific requirements in relation to skipjack. Nonetheless, the Deeds generally establish Protocols that govern interactions between the Ministry of Fisheries and iwi bodies. In addition, many Iwi (and their hapu) now have Iwi Planning documents that represent their views as part of other (e.g. Regional Council) planning processes. Such documents could also be reviewed to identify any items of relevance to this fisheries plan. High Criteria set out in individual Deeds of Settlement are met Annual review of Deeds of Settlement; iwi management plans and iwi fisheries plans to identify any items of relevance to this fisheries plan Objective 1B): Implement Deeds of Settlement as required Deeds of Settlement with individual iwi are listed in the background information section of this plan. To date, no Deeds of Settlement include specific requirements in relation to skipjack. Nonetheless, the Deeds generally establish Protocols that govern interactions between the Ministry of Fisheries and iwi bodies. High - Criteria set out in individual Deeds of Settlement are met. 22

25 Goal 2 Influence international fora and ensure NZ domesticstakeholder interests are taken into account Objective 2A): Build stronger relationships with other indigenous cultures within the within Pacific Island CountriesRim, and with distant water fishing nations The Forum Fisheries Agency (FFA) provides the main basis for New Zealand to interact with Pacific Island countries and develop shared positions. The focus of FFA is Pacific Island States rather than specifically indigenous cultures, although for many Pacific nations there is clearly strong connections between the two. Opportunistic stakeholder meetings could be used to advance this objective. Low-Medium - Opportunities to build stronger relationships identified and utilised Provide opportunities for interaction once iwi relationships with skipjack are determined Objective 2B): Clearly identify NZ domesticstakeholder interests NZ must be well informed about domestic interests to ensure they are taken into account within international negotiations. Being well informed also allows better assessment of the likely impacts of measures. To date, NZ domestic interests have been identified through regular contact, including briefings and debriefings for WCPFC and subsidiary meetings; and participation of stakeholders in delegations. There may be scope for further or more targeted engagement if stakeholders feel this objective is not fully met at present. Low - Stakeholder views incorporated into New Zealand negotiating positions Hold briefings and debriefings with fisheries stakeholders before and after tuna commission and subsidiary meetings Goal 3 Effective research and data capture for monitoring and assessment of skipjack fishing and the environment Objective 3A): Improve the reporting framework for high seas fishing High seas reporting is currently not integrated very well with domestic reporting requirements, and lacks a system for independent verification (e.g. separate reporting from fishers 23

26 and fish receivers) and error checking. Accurate recording of catches on the high seas is necessary both to ensure sustainability, and potentially for future allocations. High - High seas catches by New Zealand vessels are able to be independently verified Review high seas reporting regulations Review management of data on high seas fishing Objective 3B): Set and review non-commercial allowances Because skipjack is not included in the QMS no allowances have been set. Skipjack do not comprise part of the voluntary recreational tag and release programme, and there is limited information on the size of the recreational catch. The most recent National Marine Fishing Survey (NMFS) suggests skipjack was the 13th most popular recreational species by numbers caught. Extrapolating numbers landed to weight provides estimates of landings in tonnes for each of the NMFS undertaken. It is possible that new NMFS will be undertaken in the future. Medium - availability of non-commercial catch estimates for skipjack - availability of estimates of non-commercial value for skipjackvariance associated with estimates of recreational catch - allowances reflect assessment of the uncertaintybest in estimatesing ofthe size and value of recreationalnon-commercial catches Set non-commercial allowances based on the best available information if and when skipjack is introduced into the QMS Objective 3C): Use fisher reporting to estimate and monitor changes in captures of protected species, supplemented by a baseline of observer coverage of at least 20% of catch and effort in each fishery Observers record a low level of interactions of purse seine fisheries with protected species although there have been isolated instances when catches have been at unacceptable levels (eg dolphins). Observer coverage in recent years is outlined in the information summary. From October 2008, fishers must use non-fish bycatch reporting forms to report incidental capture of species including turtles (including in cases where the turtle is released alive, as is most likely to occur). This should provide additional data on non-fish 24

27 bycatch that was previously not effectively recoded unless an observer was onboard. Observer coverage should be increased if significant discrepancies occur in the first year between observer and fisher reporting, or if greater statistical precision is required. However, the planning of observer days is complicated by the 18 month planning time lag. Medium - at least 20% of sets observed in domestic fisheries ( ) - set and meet a target observer coverage level for large scale / charter vessels - comparison of observer and fisher reports (% variance; number/scale of discrepancies) - Observer coverage gives desired level of precision in estimates of protected species captures (cvs) - Observer coverage is representative across vessels, areas, and season. Monitor and record in the annual report any non-fish bycatch (in particular marine mammals and turtles) based on a comparison of observer data with fisher reports Goal 4 Cost effective and effective compliance regime Objective 4A): Develop a compliance strategy for skipjack No specific compliance strategy is in place for skipjack. Key compliance issues relate to the correct identification and reporting of HMS quota species. New Zealand has obligations that arise from its membership of WCPFC (e.g. implementing the high seas permit conditions relating to shark finning). New Zealand also has compliance obligations as a port state to inspect vessels entering out ports to rebunker, reprovision and/or offload fish. Systematic inspection provisions that take account of the CMMs will be required. High - Specific domestic compliance strategy developed by December The strategy strategies should include performance for ongoing monitoring of compliance. - Strategy for input into international compliance regimes for WCPFC developed by December Specific domestic compliance strategy developed by TBD- Strategy for input into international compliance regimes for 25

28 WCPFC developed by Goal 5 Flexible and responsive approach to engaging with stakeholders and making decisions Objective 5A): Promote responsive communication and understanding between fishers, NGOs, iwi, managers and researchers Stakeholder input into the Ddevelopment and ongoing monitoring and review of the fisheries plan will be important to its success, however there are a number of competing demands on stakeholders time and future engagement will need to be targeted to address specific outcomes and make best use of participants time using a range of strategies. provide an avenue for greater interaction between stakeholders. The HMS team can also make a commitment to responsive communication with stakeholders. There may be limited ability to act rapidly to respond to new information, particularly if regulatory changes are required as a result. The process of putting in place new regulations generally takes close to a year. There are provisions in the Fisheries Act for emergency measures to be put in place, but the trigger is quite high for defining what an emergency is. Where regulations are not required, responses can be more rapid. Bi-annual workshops with pelagic longliners are generally held in May and October, and allow for exchange of information between MFish and fishers. Low-Medium Engagement is results focused and targeted. - Respond quickly to new information, including calling ad hoc meetings as required to respond to emerging situations - open communication between stakeholders and MFish - facilitate regular meetings between sector groups (including using opportunities presented by existing forums such as the Seafood Industry Conference, RFC and BGFC AGMs) - bi-annual workshops with pelagic longline fishers add value to longline fishers (informal surveys) and assist with MFish processes - avoid meeting clashes and give advanced notice of meetings Development of an engagement model for the skipjack fishery consolidating fisheries management, services, research and cost recovery requirements by

29 Goal 6 Commercial and non-commercial fishers and the public Stakeholders are well aware of and understand the rules governing fishing for skipjacks Objective 6A): Ensure the public is confident that bycatch is well managed in skipjack purse seine fisheries This objective relates both to how bycatch is managed (covered in ecosystem goals); and public understanding of management. MFish does not routinely publish good news stories about fishers proactively managing bycatch or protected species issues. The release of a code of practice could be one occasion to do so. Medium - MFish and the fisheries plan advisory group for skipjack keep the public informed through annual updates on management (including bycatch mitigation). - MFish and the fisheries plan advisory group provide information to the public on any specific bycatch events (as appropriate) Objective 6BA): Ensure arrangements for foreign vessels (license or charter) with respect to availability of quota species and knowledge of local area closures Generally this is the responsibility of the permit holder but the task may be more complicated for any vessels fishing with non- English speaking crews. Skipjack licensing requirements are not clear with respect to the requirement to the availability of quota species and knowledge of local area closures. for any vessel fishing under the US Tuna treaty. The vessels generally have observers on board, who can provide feedback on the rules and suggestions for improvements as required. Low - Medium (level of risk depends on the likelihood of fishing companies making additional investment into the domestic skipjack tuna fishery and U.S. vessels fishing pursuant to the US tuna treaty) - Information made readily available - Fishing companies that use foreign charter vessels ensure vessels have access to ACE. Targeted observer coverage Targeted supply of relevant information. 27