CRA 3 Multi-stakeholder Fishing Forum FISHERIES MANAGEMENT PLAN: GISBORNE RED ROCK LOBSTER FISHERY (CRA 3)

Transcription

1 CRA 3 Multi-stakeholder Fishing Forum FISHERIES MANAGEMENT PLAN: GISBORNE RED ROCK LOBSTER FISHERY (CRA 3) Third CRA 3 Working Group Draft

2 * Image on Front Cover - CRAYFISH, from an Encyclopaedia of New Zealand, edited by A.H. McLintock, originally published in Te Ara The Encyclopaedia of New Zealand. URL:

3 Foreword From the time that the East Cape, Gisborne and northern Hawkes Bay areas were first settled, tales of fishing endeavours have permeated the stories and myths of the people in this region. Maori legend has it, that from his waka (canoe) Maui-Tikitiki-a-Taranga fished up the North Island (Te Ika a Maui) out of the Pacific Ocean. One version of this legend, from the East Cape and Gisborne region, claims that Maui s waka came to rest upon Mount Hikurangi which is the first place on New Zealand s mainland to be bathed in sunshine each day. Today, whether for sustenance, recreation or work, fishing still plays a part in the lives of many East Coasters. The iconic New Zealand species the red rock lobster (also known as crayfish, koura, spiny lobster or Jasus edwardsii) plays a lead role and was first used by Maori as a customary food source and has been the backbone of the local fishing industry for years. Widely considered a delicacy, rock lobster has always been sought after by local recreational fishers and visitors to the region. For tāngata whenua of East Cape, Gisborne and northern Hawkes Bay, koura is a taonga (or treasure). Tāngata whenua in this region are linked through whakapapa (genealogy) to other descendants from the ancestral waka, Mataatua, Horouta and Takitimu. Whakapapa establishes their traditional rights and obligations in relation to each other and the use of natural resources in their rohe (area). Through tikanga (maori protocol), tāngata whenua exercise stewardship to ensure that a healthy koura fishery can provide sustenance for their iwi, hapu and whänau and to enable them to extend hospitality to other people. Protecting the mauri - the life essence passed from Ranginui (Sky father) and Papatuanuku (Earth mother) to their progeny, including Tangaroa (deity of the oceans), and down to all living things of the marine environment is central to the exercise of this stewardship. Renowned for its beautiful and golden beaches, and in places its rugged coastline, the East Cape, Gisborne and northern Hawkes Bay region teems with people enjoying the water and its surrounds over the summer months. For locals and visitors alike rock lobster are a highly prized catch and, for many non-fishers, a culinary indulgence. Commercial rock lobster fishing also has a long history in the region and, over the years, has had to change considerably to keep pace with the changing demands of the markets and management regimes in which the industry operates. In the 1940s-50s, rock lobsters were caught predominantly for domestic consumption and today, the majority of this commercially valuable catch is destined for overseas markets and worth millions in export earnings. For industry participants, the goal is to maintain a productive fishery that can provide livelihoods for fishers and rights holders, and contribute to the economic well-being of the community. This Fisheries Plan is a testament to the role rock lobster plays in the lives of those in the region. It is also a testament to the commitment all sectors involved in rock lobster fishing tāngata whenua, recreational and commercial have to ensuring that the region s rock lobster fishery is healthy, productive and sustainable for future generations.

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5 CONTENTS 1.0 Introduction The CRA 3 Fisheries Management Plan Background to the CRA 3 Plan Scope of the CRA 3 Fisheries Plan Status of the Plan Fishery Goals High-level Fishery Goals Principles Underlying the Goals A Sustainable CRA 3 Fishery The Goal Contributing Objectives Assessment of Current Performance against Objectives Management Tools and Services Performance Monitoring Quality Information for Decision-Making The Goal Contributing Objectives Assessment of Current Performance against Objectives Management Tools and Services Performance Monitoring A Healthy CRA 3 Fisheries Environment The Goal Contributing Objectives Assessment of Current Performance against Objectives Management Tools and Services Performance Monitoring A fishery for All Sectors The Goal Contributing Objectives Assessment of Current Performance against Objectives Management Tools and Services Performance Monitoring Implementation Plan Summary of Management Tools and Services Implementation Timetable Monitoring and Review Plan Summary of Fishery Performance Indicators Monitoring and Review Plan 38 Appendix 1 The CRA 3 Multi-stakeholder Fishing Forum 37 Appendix 2 CRA 3 Fishery Profile 43 Appendix 3 Reference Document List 79 Third CRA 3 Working Group Draft

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7 1.0 INTRODUCTION 1.1 The CRA 3 Fisheries Management Plan The CRA 3 Fisheries Management Plan (the CRA 3 Plan) has been developed by the CRA 3 Multi-stakeholder Fishing Forum (the CRA 3 Forum) with assistance from the Ministry of Fisheries (MFish). The CRA 3 Plan: Sets out the long-term, high-level goals for the CRA 3 fishery Identifies current issues in the fishery affecting our ability to achieve the goals Sets short-medium term objectives to address current issues Proposes new tools and services to ensure objectives are met Includes: o o A 5-year Implementation Plan to progress tools and services proposed A Monitoring and Review Plan to measure performance against goals and objectives, and to review objectives, tools and services at appropriate intervals. 1.2 Background to the CRA 3 Plan Tāngata whenua and fishing stakeholders formed the CRA 3 Forum in May 2006 to discuss and resolve two perceived utilisation issues that were causing cross-sector conflict in the fishery. The make-up and operation of the CRA 3 Forum is described in Appendix 1. The CRA 3 Forum expanded its focus, identifying its purpose as: To develop, implement and manage an integrated fisheries management plan for the CRA 3 fishery Despite this expansion of purpose, the perceived utilisation issues remain a key focus. The issues are: Equity of access to fish in CRA 3, specifically, recreational sector beliefs that commercial fishers are provided an access advantage in winter; and Inter-sector spatial conflict, specifically, recreational sector beliefs that increased spatial overlap between commercial and non-commercial fishers near Gisborne is reducing recreational fishing values. 1.3 Scope of the CRA 3 Fisheries Plan The species focus of the CRA 3 Plan is the red rock lobster (Jasus edwardsii; also known as spiny rock lobster, koura or crayfish). The Plan does not address management of any other species. 1 Third CRA 3 Working Group Draft

8 The spatial focus of the CRA 3 Plan is the Gisborne Quota Management Area, CRA 3. The CRA 3 Quota Management Area extends from East Cape to the Wairoa River (Figure 1). Figure 1: The CRA 3 rock lobster fishery. The CRA 3 Plan is an integrated plan in that it includes consideration of: Red rock lobsters Associated and dependent species and the environment (ie, the wider marine ecosystem) The characteristics of the fishery and its participants Non-fishing interests and impacts. 2 Third CRA 3 Working Group Draft

9 This iteration of the CRA 3 Plan is not, however, a comprehensive fisheries plan. Objectives have been set to address identified risks to high-level goals only. Objectives have not been set when no specific risk has been identified. An example is impacts of rock lobster fishing on the marine environment. In 2008, no specific threats arising from rock lobster fishing activities have been identified to: The biological diversity of the marine environment The viability of associated and dependent species Habitats of particular significance to fisheries management. Consequently, in this iteration of the CRA 3 Plan, no objectives (or performance criteria) have been set for managing the impacts of rock lobster fishing. Future iterations of the CRA 3 Plan will seek to address all aspects of the CRA 3 fishery. Until then, MFish will monitor performance against legislative requirements and standards (where they have been set) not incorporated into the plan. 1.4 Status of the Plan This CRA 3 Plan sets out high-level goals and objectives that: Will be taken into account by the National Rock Lobster Management Group (NRLMG) and MFish when providing advice to the Minister of Fisheries on rock lobster management, or other matters, that affect the CRA 3 fishery; and [Will be taken into account by the Minister of Fisheries when making decisions that affect the CRA 3 fishery.] if approved under s11a of FA96. The Plan also requests management tools and services that will: Guide NRLMG and MFish management activity in relation to the CRA 3 fishery Guide management activity undertaken by the CRA 3 Working Group and its member representatives. Some of the requested tools and services require Ministerial approval (eg, Total Allowable Catch (TAC) setting measures and regulatory measures). These tools and services will only be implemented if, after consultation with interested parties and consideration of all statutory obligations, the Minister of Fisheries is satisfied that implementation meets the purposes and principles of the Fisheries Act 1996 (FA96). This Plan includes a timetabled Implementation Plan of the requested tools and services. The ability to undertake actions and meet timeframes is subject to available resources, including, for example, the availability of MFish resources to write and consult on regulatory proposals or the availability of stakeholder resources to develop an education tool. Annual performance against the Implementation Plan will be monitored by the CRA 3 Forum s Working Group and will be reported on in the NRLMG Annual Report. Performance against the goals and objectives set out in this Plan will also be monitored and reported on. The Plan will be updated and reviewed at appropriate intervals. 3 Third CRA 3 Working Group Draft

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11 2.0 FISHERY GOALS What do we want from the CRA 3 Rock Lobster Fishery? 2.1 High-level Fishery Goals The high-level goals for the CRA 3 fishery are: High-level Goals 1 A Sustainable CRA 3 Fishery 2 Quality Information for Decision-Making 3 A Healthy CRA 3 Fisheries Environment 4 A Fishery for All Sectors These high-level goals are consistent with the purposes and principles of FA96 and with government objectives for fisheries. 2.2 Principles Underlying the Goals The CRA 3 Forum has identified the following underlying principles to the fishery goals. These principles provide greater insight into what is meant by each goal. For Goal 1- A Sustainable CRA 3 Fishery Maintain stock biomass above the target biomass level with high probability Increase stock biomass in each fishing year that it is below target biomass Minimise both illegal take and unintended mortality so that legitimate CRA 3 stakeholders can achieve maximum value from available catch. For Goal 2 Quality Information for Decision-Making: Decision-making is based on the best available information Uncertainty, unreliability, or inadequacy in the information used for decisionmaking is reduced where it is cost-effective to do so 5 Third CRA 3 Working Group Draft

12 Management actions are developed through a process that involves all sector groups, and the sector groups are knowledgeable about all the information relevant to decision-making. For Goal 3 A Healthy CRA 3 Fishery: The biological diversity of the marine environment is maintained The viability of associated and dependent species is assured Habitats of particular significance to fisheries management are protected and, where appropriate, enhanced. For Goal 4 A Fishery for All Sectors: Fishing and non-fishing sectors are able to provide for their social, economic, and cultural wellbeing Management actions are developed through a process that involves all sector groups, and the sector groups are knowledgeable about all the information relevant to decision-making The biological, environmental, cultural, social, and economic impacts of any proposed management action are considered. 6 Third CRA 3 Working Group Draft

13 3.0 A SUSTAINABLE CRA 3 FISHERY Fish are there for our mokopuna our future generations 3.1 The Goal The priority goal for CRA 3 is Goal 1 A sustainable CRA 3 fishery Sustainable means stock biomass is managed to a level at or above the biomass that produces the maximum sustainable yield (B MSY ) or an alternative target accepted by the Minister of Fisheries. CRA 3 Fishery is the harvested portion of the CRA 3 stock; it encompasses all harvest-related mortalities, including customary, recreational and commercial catches, handling-related mortality of rock lobsters returned to sea, and illegal take. Managing CRA 3 harvest sustainably will ensure the values of tāngata whenua, the recreational and commercial fishing sectors, and non-fishing stakeholders (hereafter referred to jointly as stakeholders) can be recognised and provided for both now and in the future. 3.2 Contributing Objectives CRA 3 fishery information a shows the key sustainability issues affecting the CRA 3 fishery in 2008 are low abundance, high illegal take and the incidence of the bacterial infection tail fan necrosis. Addressing these problems is the focus of the Goal 1 objectives: Goal 1 Objectives A Stock biomass is managed at or above the target biomass with high probability by making timely adjustments to catch levels in response to changes in stock abundance B CRA 3 illegal take is reduced by 50% by 2013 C Fisher knowledge of the procedures that minimise handlingrelated damage of rock lobsters is increased by 50% by Assessment of Current Performance against Objectives The following tables assess current performance against these objectives using best available fishery and stakeholder information. a Refer Appendix 1 (CRA 3 Fishery Profile) and Appendix 3 (Reference Document List) 7 Third CRA 3 Working Group Draft

14 Objective (A): Stock biomass is managed at or above the target biomass with high probability by making timely adjustments to catch levels in response to changes in stock abundance Assessment: Are we on track? Stock biomass is currently below the target biomass level. The TAC for CRA 3 is set under s 13 of the FA96, which requires stock biomass to be managed at or above BMSY. A proxy for BMSY was used in the 2004 CRA 3 TAC Review. The proxy was the biomass equivalent to an autumn-winter standardised CPUE (AW CPUE) of 0.75kg/potlift. CRA 3 AW CPUE has been below 0.75kg/potlift since In , AW CPUE was 0.60 kg/potlift. The CRA 3 TAC was reduced in Stock assessment projections indicated the reduction would likely (ie, with 67% probability) increase the stock size by 33% over 3 years. The increase achieved over the 3 years was approximately 30%. Catch level adjustments are informed by stock assessments, which occur at variable intervals. The current management approach uses stock assessments to guide TAC setting by assessing current biomass and projecting future biomass. If biomass falls below the target, the TAC is adjusted to move the biomass back towards the target. Stock assessments are undertaken at variable intervals. Risk: Current risk to achieving this objective is HIGH. Stock biomass is below the target level. Adjustments to catches are infrequent and based as much on timing of stock assessments as on changing abundance in the fishery. Objective (B): CRA 3 illegal take is reduced by 50% by 2013 Assessment: Are we on track? Risk: CRA 3 illegal take was estimated at 89 tonnes in tonnes is 27% of the current TAC and more than four times the catch allocation made to customary and to recreational fishers (20 tonnes each). Current risk to achieving this objective is HIGH. Compliance activity is ongoing in CRA 3. However, no additional strategies have been implemented to achieve this new objective. 8 Third CRA 3 Working Group Draft

15 Objective (C): Fisher knowledge of the procedures that minimise handlingrelated damage of rock lobsters is increased by 50% by 2011 Assessment: Are we on track? Risk: Fisher knowledge of procedures that reduce handling-related damage is assessed as moderate. Anecdotal information from fishers suggests knowledge and/or use of procedures that reduce handling-related damage is lower than desirable. Commercial fishers are informed of procedures via a code of practice. Information targeted at noncommercial fishers is limited. Current risk to achieving this objective is HIGH. Only commercial fishers have targeted education. 3.4 Management Tools and Services The assessment shows that management action is required to ensure Goal 1 objectives can be met. Management activity will be focussed in the following areas: Goal 1 Management Tools and Services i Develop, test and implement a management procedure to guide TAC setting in the CRA 3 fishery ii iii Develop and implement an education strategy on the CRA 3 fishery and on CRA 3 management tools and rules Develop, distribute and promote a cross-sector code of practice on handling rock lobster Tool (i): Develop, test and implement a management procedure to guide TAC setting in the CRA 3 fishery Management procedures are a tool used to guide the TAC setting process. A management procedure: (i) specifies what data will be used to guide TAC decisions; (ii) how the data will be collected, groomed and analysed; (iii) contains a harvest control rule, which is a mathematical equation that determines the required output (eg, the TAC); and (iv) is extensively tested. Management Procedures have been used successfully in other New Zealand rock lobster fisheries (CRA 7 and CRA 8). CRA 3 stock abundance is below the current target biomass level and has been so since Adopting a management procedure would provide a cost effective way to monitor, and respond in a more timely fashion to changes in, stock abundance. The management procedure could be designed to meet specified objectives, and to be robust to uncertainties in fishery information. 9 Third CRA 3 Working Group Draft

16 Priority for Action: Process(es) Service Provider Preferred Timeframe HIGH MFish Research Planning; NRLMG Annual Advice MFish (Research Planning); Rock Lobster Fisheries Assessment Working Group (RLFAWG); NRLMG 1 April 2009 Implementation Tasks: 1. Develop research project to design the management procedure 2. Implement research project via MFish National Rock Lobster Stock Assessment Research Project 3. Discuss and confirm management procedure specifications with research project team 4. Achieve ministerial approval of the management procedure via NRLMG annual advice process Tool (ii): Develop and implement an education strategy on the CRA 3 fishery and on CRA 3 management tools and rules Compliance and enforcement activity in the CRA 3 fishery is conducted by MFish and is ongoing. Building community understanding of how the fishery contributes to community well-being and of the rationale for management tools and rules promotes feelings of connection to, and ownership of, the fishery. Feelings of connection and ownership are likely to increase compliance with rules, increase occurrence of peer pressure and child pressure (children encouraging parents to act responsibly), and increase the flow of information on illegal activity to fisheries officers. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH CRA 3 Working Group (CRA 3 WG) CRA 3 WG 1 November 2009 Completion 1. Develop education strategy 2. Implement education strategy 3. Monitor performance of strategy Tool (iii): Develop, distribute and promote a cross-sector code of practice on handling rock lobster Anecdotal information from fishers suggests knowledge and/or use of handling procedures that minimise the handling-related damage and mortality of rock lobsters returned to sea is lower than desirable, particularly among non-commercial fishers. Poor handling of lobsters can increase catch-related mortality, may make lobsters vulnerable to diseases like tail fan necrosis ( black rot ), and may increase fishingrelated mortality. Northern parts of CRA 3 have had higher incidences of black rot 10 Third CRA 3 Working Group Draft

17 than other rock lobster fisheries and black rot may be spread across fishing grounds by poor handling of rock lobsters that are returned to the sea. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH CRA 3 WG CRA 3 WG 1 November 2009 Completion 1. Develop cross-sector code of practice for handling rock lobster 2. Distribute and promote the code 3. Monitor knowledge of the code and uptake of handling procedures through surveys Other Management Tools and Services Considered Other management tools considered to ensure Goal 1 objectives can be met were: Reducing the TAC Recreational telson clipping and/or commercial tagging Closing areas (including closing areas to commercial) Removing the winter commercial concession Enhancing rock lobster habitat Influencing mortality of CRA 3 predators Enhancing the stock Limits on commercial pot numbers. These tools were either incorporated into the chosen tools (eg, Tool (i) guides TAC setting, including reductions in the TAC), were considered effective only if applied at the national-level (eg, recreational telson clipping and/or commercial tagging) or were considered unsuitable or less effective less than the tools chosen. The contribution to Goal 1 of tools considered unsuitable or less effective were generally indirect or highly uncertain. 3.5 Performance Monitoring The CRA 3 Forum will track performance against Goal 1 objectives using the following performance indicators: 11 Third CRA 3 Working Group Draft

18 Objective Performance Indicators A CRA 3 stock is maintained at or above the specified management procedure target with the specified high probability* *Stakeholders will agree, and the Minister of Fisheries will approve, the target and high probability specifications when developing and implementing the management procedure. CRA 3 illegal take estimated at 45 tonnes in 2013* B *Illegal take is very difficult to estimate and contains a high level of error. Illegal take will be estimated in 2013 using the same methodology used in 2004, or using an accepted alternative methodology. C CRA 3 fisher surveys b show a 50% increase (from baseline) in fisher knowledge of best-practice lobster handling procedures 2 yrs after release of the code of practice. As noted in section 1.4 above, progress in implementing the tools and services specified in this fisheries management plan will also be monitored. For Goal 1, implementation progress will be monitored using the following indicators: (a) Management procedure implemented within agreed timeframe (b) Education strategy developed and implemented to agreed timeframes (c) Cross-sector best practice code developed and distributed within agreed timeframe. b A CRA 3 fisher survey will be designed and applied to monitor performance against Goal 1 Objective C, and also Goal 2 Objective F and Goal 4 Objectives G and H 12 Third CRA 3 Working Group Draft

19 4.0 QUALITY INFORMATION FOR DECISION-MAKING Greatness is built on wisdom not wishes 4.1 The Goal Having essential and accurate information is critical to effective decision-making and is the focus of Goal 2 Quality information for decision-making. Information includes all scientific, customary, recreational, commercial, cultural, social and economic information, and any analysis of such information. Decision-making is the process of determining the appropriate management action. Ensuring information for decision-making is of high quality will ensure robust fisheries management approaches can be developed for the CRA 3 fishery. 4.2 Contributing Objectives CRA 3 fishery information and stakeholder inputs reveal the key information gaps affecting decision-making in the CRA 3 fishery in 2008 are unreliable non-commercial catch information, lack of clarity about the decision-making usefulness of information on pre-recruit lobsters, and poor stakeholder understanding of the factors that affect rock lobster fisheries. Addressing these gaps is the focus of the Goal 2 objectives: Goal 2 Objectives D E Non-commercial catch information is improved. Specifically: 80% of CRA 3 customary permit issuers reporting catch by 2013 Uncertainty associated with the CRA 3 recreational catch estimate is reduced The usefulness of collecting pre-recruit abundance and size information for stock management is assessed F Stakeholder knowledge of the factors affecting rock lobster abundance is increased by 50% by Assessment of Current Performance against Objectives The following tables assess current performance against these objectives using best available fishery and stakeholder information. 13 Third CRA 3 Working Group Draft

20 Objective (D): Non-commercial catch information is improved Assessment: Are we on track? Customary catch information is currently incomplete. Under the Fisheries (Kaimoana Customary Fishing) Regulations 1998, Tāngata Kaitiaki (kaitiaki) are required to report catches quarterly. At this time, not all kaitiaki are reporting catch. Under Regulation 27A of the Fisheries (Amateur Fishing) Regulations 1986, there is no requirement to report catch authorisations for tangi or hui and very few are reported. Recreational catch information is highly uncertain. Under the Fisheries (Amateur Fishing) Regulations, there is no requirement to report recreational catch. Current recreational harvest estimates are derived from regional and national telephone and diary surveys and have high levels of uncertainty. Risk: Current risk to achieving this objective is HIGH. Customary catch information is incomplete, and is improving very slowly as few new areas are being gazetted under the Fisheries (Kaimoana Customary Fishing) Regulations Recreational catch information is currently highly uncertain. Objective (E): The usefulness of collecting pre-recruit abundance and size information for stock management is assessed Assessment: Are we on track? Risk: The usefulness of information on some classes of pre-recruits has been assessed. Juvenile abundance surveys of 1, 2 & 3 year old lobsters were undertaken from 1993 to 1999, however the survey has since been abandoned. The proportion of lobsters under the minimum legal size in pots are recorded during commercial catch surveys, however, juveniles can escape pots through escape gaps and are not recorded during the survey. Annual levels of puerulus larvae settlement have been monitored in 1-2 sites within CRA 3 since Current risk to achieving this objective is LOW. Some research has been conducted on certain size classes of pre-recruits. However, the usefulness of other size classes of pre-recruit information may need to be assessed. 14 Third CRA 3 Working Group Draft

21 Objective (F): Stakeholder knowledge of the factors affecting rock lobster abundance is increased by 50% by 2013 Assessment: Are we on track? Stakeholder knowledge of the factors affecting rock lobster abundance is assessed as low. Anecdotal information suggests current knowledge levels are low, particularly in relation to the influence environmental factors. Although information is available, CRA 3 stakeholders cannot easily access it. This goal is future focussed and aims to increase stakeholder knowledge. Risk: Current risk to achieving this goal is MEDIUM. Research information is available to help understand the complexity of factors affecting rock lobster abundance but the information is not easily accessible to CRA 3 stakeholders. 4.4 Management Tools and Services The assessment shows that management action and additional information are needed before Goal 2 objectives can be met. Management activity and information collection will be focussed in the following areas: Goal 2 Management Tools iv Develop and deliver an education and resource package on customary catch reporting v Through submissions, support national-level activities that improve recreational catch information vi Complete a feasibility study looking at using regional sector networks to better estimate CRA 3 recreational catch Vii Viii Complete a feasibility study looking at using pre-recruit information to inform management of the CRA 3 fishery Develop and deliver an education package on the environmental factors affecting rock lobster abundance 15 Third CRA 3 Working Group Draft

22 Tool (iv): Develop and deliver an education and resource package on customary catch reporting Customary catch information is currently incomplete. Some hapu authorities, kaitiaki and permit issuers are concerned that the information, if provided, will be used to cut customary catch limits. Hapu authorities, kaitiaki and permit issuers that are informed about the importance of customary catch information for decisionmaking, and how it will be used, are more likely to provide the information, especially if they are also provided with easy-to-use reporting systems. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH Stakeholder processes CRA 3 WG Customary Representatives 1 November 2009 Completion 1. Develop education and resource (process and templates) package for hapu authorities, kaitiaki and permit issuers 2. Implement education and resource package 3. Monitor performance of education and resource package Tool (v): Through submissions, support national-level activities that improve recreational catch information Ideas and initiatives to improve recreational catch estimates at the national level sometimes flounder because of lack of support. Supporting national stakeholder and MFish initiatives that improve recreational catch information may help to improve recreational harvest estimates in the long term. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH Stakeholder processes CRA 3 WG Stakeholder Representatives Ongoing 1. Prepare written submissions to support nationallevel activities to improve recreational catch reporting, as appropriate 2. Monitor number of national-level activities and number of submissions lodged 16 Third CRA 3 Working Group Draft

23 Tool (vi): Complete a feasibility study looking at using regional sector networks to better estimate CRA 3 recreational catch Identifying and surveying recreational participants cost effectively in rock lobster fisheries has proven to be difficult. CRA 3 recreational stakeholders believe regional recreational sector networks may provide the pathway to improving the identification and surveying of recreational fishers. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH Stakeholder processes CRA 3 WG Recreational Representatives 2009 Recreational Working Group Process 1. Talk to research scientists about target participation levels for surveys 2. Develop a feasibility study looking at using regional sector networks to achieve target participation levels 3. Present feasibility study to Recreational Working Group for discussion 4. If appropriate, explore avenues to implement study and seek funding Tool (vii): Complete a feasibility study looking at using pre-recruit information to inform management of the CRA 3 fishery Many stakeholders believe monitoring of pre-recruits could provide important information to managers about future fishable stock size. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: LOW Stakeholder processes CRA 3 WG Commercial Representatives 2011 Research Working Group Process 1. Develop a feasibility study looking at using pre-recruit information to inform management of the CRA 3 fishery 2. Present feasibility study to rock lobster stock assessment team and RLFAWG for discussion 3. If appropriate, implement research project via MFish National Stock Assessment Rock Lobster Research Project 17 Third CRA 3 Working Group Draft

24 Tool (viii): Develop and deliver an education package on the environmental factors affecting rock lobster abundance Involving all fishery sectors in decision-making is critical to building feelings of ownership of the fishery, identifying robust and workable solutions, and minimising conflicts. Effective involvement means making sure sector participants are knowledgeable about the fishery, and have access to all the relevant information. Anecdotal information suggests that stakeholder knowledge of the factors that affect rock lobster abundance, particularly environmental factors, is low and that this frequently leads to unrealistic expectations and dissatisfaction with the fishery and with fishery management approaches. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: MEDIUM CRA 3 WG CRA 3 WG 1 November 2009 Completion 1. Complete literature review on environmental factors affecting rock lobster abundance 2. Develop education package on environmental factors affecting lobster abundance 3. Deliver education package on key environmental factors 4. Monitor knowledge of key environmental factors affecting rock lobster abundance through surveys Other Management Tools and Services Considered Other management tools considered to ensure Goal 2 objectives can be met were: Introducing fine scale catch effort data collection and management Introducing regulated catch reporting for all customary extractions Introducing regulated catch reporting for recreational fishers. These tools were either incorporated into the chosen tools (eg, Tool (iv) encourages customary catch reporting for all extractions), were considered better applied at the national-level rather than regional-level initiatives (eg, mandatory catch reporting by recreational) or were considered unsuitable, less effective or less cost effective than the tools chosen. 18 Third CRA 3 Working Group Draft

25 4.5 Performance Monitoring Goal 2 objectives will be monitored using the following performance indicators: Objective Performance Indicators D (a) 80% of CRA 3 customary permit issuers reporting their catch by 2013 (b) Uncertainty associated with CRA 3 recreational catch estimate is reduced by 2015 F CRA 3 fisher surveys show a 50% increase (from baseline) in fisher knowledge of environmental factors affecting rock lobster abundance by 2013 For Goal 2, implementation progress will be monitored using the following indicators: (a) (b) (c) (d) Education and resource package for hapu authorities, kaitiaki and permit issuers developed and delivered to agreed timeframes Submissions lodged on 100% of national initiatives to improve recreational catch reporting annually Feasibility studies developed and presented to relevant research working groups to agreed timeframes Education programme on key environmental factors affecting rock lobster abundance developed and delivered within agreed timeframes. 19 Third CRA 3 Working Group Draft

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27 5.0 A HEALTHY CRA 3 FISHERIES ENVIRONMENT The mauri - the life-giving essence - of the marine environment is protected 5.1 The Goal Goal 3 A healthy CRA 3 fisheries environment recognises that all things are connected and that a healthy CRA 3 fishery is only possible if the CRA 3 marine environment is also healthy. Healthy refers to the protection (and where appropriate enhancement) of habitats of significance to fisheries management, and the maintenance of biological diversity and of associated and dependent species viability. CRA 3 fisheries environment encompasses marine habitats important to juvenile and adult rock lobster life stages. 5.2 Contributing Objectives CRA 3 fishery information and stakeholder inputs reveal the environmental problems affecting the CRA 3 fishery in 2008 are the harmful effects of terrestrial and marine activities on the aquatic environment including rock lobster habitats, environmental impacts on juvenile settlement success, and perceived increases in natural predation of rock lobsters. Addressing or investigating these problems is the focus of the Goal 3 objectives: Goal 3 Objectives G The potentially harmful effects of terrestrial and marine activities on important CRA 3 habitats are considered by councils H The usefulness of creating new CRA 3 habitats is assessed I The abundance of CRA 3 predators is managed 5.3 Assessment of Current Performance against Objectives The following tables assess current performance against these Goal 3 objectives using best available fishery and stakeholder information. 21 Third CRA 3 Working Group Draft

28 Objective (G): The potentially harmful effects of terrestrial and marine activities on important CRA 3 habitats are considered by councils Assessment: Are we on track? The potentially harmful effects of terrestrial and marine activities on important CRA 3 habitats have not been identified and are not directly considered. Regional and District Councils are responsible for managing many terrestrial and marine impacts and have generic plans and strategies to address resource management issues like stormwater and soil erosion, but these do not specifically address risks to rock lobster such as copper pollutants and sedimentation of reefs. Risk: Current risk to achieving this objective is MEDIUM. Generic management strategies exist but specific risks to rock lobster habitat have not been assessed or included in management considerations. Objective (H): The usefulness of creating new CRA 3 habitats is assessed Assessment: Are we on track? The usefulness of creating new CRA 3 habitats is unknown. Given past abundance levels experienced in CRA 3, it is considered unlikely that habitat is a limiting factor at this time. However, some stakeholders consider correctly placed artificial habitat may improve settlement success and recruitment in low settlement years. No artificial shelters or reefs have been created for rock lobster in New Zealand. The shelter preferences of young juveniles in the wild are not well known. However, it is understood that a pilot research project was carried out in Anaura Bay that looked at creating artificial habitat for juvenile lobsters. Risk: Current risk to achieving this goal is LOW. Some research information may be available to help understand the usefulness of creating new rock lobster habitat in CRA Third CRA 3 Working Group Draft

29 Objective (I): The abundance of CRA 3 predators is managed Assessment: Are we on track? The impact of changes in CRA 3 predator abundance is unknown. Rock lobster larvae are eaten by plankton feeders and bottom-feeding fish, whereas adults and juvenile lobsters are eaten by octopuses, sharks and some fish species. Stakeholders have particular concerns about anecdotal information on increasing rig (or spotted dogfish) numbers. Rig landings have exceeded the TACC every year since the fishing year Shark species can be vulnerable to overfishing and must be managed carefully. The TACC for SPO 2 (east coast rig fishery) was increased from 72 t to 86 t in Octopus is another key predator. Octopus abundance fluctuates annually and catches have also fluctuated through time. There is no catch limit on octopus (ie, is open access fishery). Risk Current risk to achieving this goal is LOW. CRA 3 predators are managed in a manner consistent with the FA Management Tools The assessment shows that some management action may be desirable to ensure Goal 3 objectives can be met. Management activity will be focussed in the following areas: Goal 3 Management Tools ix Identify risks to important CRA 3 habitats arising from terrestrial and marine activities and engage with council processes to ensure these risks are considered x Complete a cost-benefit analysis of habitat creation within CRA 3 xi Participate, as appropriate, in fisheries management processes dealing with CRA 3 rock lobster predator species 23 Third CRA 3 Working Group Draft

30 Tool (ix): Identify risks to important CRA 3 habitats arising from terrestrial and marine activities and engage with council processes to ensure these risks are considered Councils operating within CRA 3 currently have no specific information about where rock lobster habitats are and what kinds of terrestrial and marine activities may be harmful to them. Ensuring councils have this information to consider when granting consent to terrestrial and marine activities will provide better protection to important CRA 3 rock lobster habitats. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: MEDIUM CRA 3 WG CRA 3 WG Tasks completed by 1 April Map, and identify risks to, important CRA 3 rock lobster habitats 2. Request the insertion of Adverse effects on identified habitats of Gisborne (CRA 3) rock lobster as an assessment criteria in relevant regional council planning documents 3. Prepare written submissions for resource consent applications which have the potential to adversely effect important CRA 3 habitats, as appropriate Tool (x): Complete a cost-benefit analysis of habitat creation within CRA 3 Some stakeholders consider artificial rock lobster habitat, if correctly placed, may improve settlement success and recruitment in low settlement years. The cost effectiveness of habitat creation is unknown however. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: LOW Stakeholder Processes CRA 3 WG Commercial Stakeholders Tasks completed by 1 April Complete literature review on rock lobster habitat creation 2. Conduct a cost-benefit analysis of CRA 3 habitat creation 3. If appropriate, explore avenues to create new CRA 3 habitat 24 Third CRA 3 Working Group Draft

31 Tool (xi): Participate, as appropriate, in fisheries management processes dealing with CRA 3 rock lobster predator species Imbalances between predator and prey species are undesirable and can affect the health of ecosystems and fisheries. Monitoring indicators of abundance of rock lobster prey, and contributing to any fisheries management processes that manage these species where appropriate, will help to ensure the health of CRA 3 rock lobster environments. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: LOW MFish Science Working Group, Research Planning and Sustainability Review Processes CRA 3 WG Stakeholder Representatives Ongoing Identify and participate in fisheries management processes dealing with CRA 3 lobster predators, as appropriate 5.5 Performance Monitoring Goal 3 objectives will be monitored using the following performance indicators: Objective Performance Indicators G Councils operating in CRA 3 consider the impacts of all potentially harmful terrestrial and marine activities on important rock lobster habitats by 2013 I Participation at 50% of fisheries management processes dealing with CRA 3 lobster predator species annually For Goal 3, implementation progress will be monitored using the following indicators: (a) (b) Important CRA 3 rock lobster habitats mapped and risks identified within agreed timeframe. Cost-benefit analysis of CRA 3 habitat creation completed within agreed timeframe. 25 Third CRA 3 Working Group Draft

32 26 Third CRA 3 Working Group Draft

33 6.0 A FISHERY FOR ALL SECTORS Everyone has a fair share of this taonga 6.1 The Goal Goal 4 A fishery for all sectors relates directly to the initiating issues behind development of this CRA 3 Fisheries Management Plan: Equity of access to fish in CRA 3, specifically, recreational sector beliefs that commercial fishers are provided an access advantage in winter; and Inter-sector spatial conflict, specifically, recreational sector beliefs that increased spatial overlap between commercial and non-commercial fishers near Gisborne is reducing recreational fishing values. 6.2 Contributing Objectives Available CRA 3 fishery information neither confirms nor rejects the validity of the initiating issues. Stakeholder views differ on both the validity of the issues and the reasons for their presence. However, all parties agree that conflict among fishing sectors in CRA 3 is undesirable. Addressing the conflict is the focus of the Goal 4 objectives: Goal 4 Objectives J Fisher concerns about inter-sector spatial overlap in the CRA 3 fishery are reduced K Fisher concerns about inequity of access to rock lobsters in the CRA 3 fishery are reduced 6.3 Assessment of Current Performance against Objectives The following tables assess current performance against Goal 4 objectives using best available fishery and stakeholder information. 27 Third CRA 3 Working Group Draft

34 Objective (J): Fisher concerns about inter-sector spatial overlap in the CRA 3 fishery is reduced Assessment: Are we on track? Fisher concerns about spatial overlap in the CRA 3 fishery is assessed as high. The recreational sector believes commercial fishing effort has increased near Gisborne due to: 1. Transferred commercial fishing effort after the establishment of the Te Tapuwae o Rongokako marine reserve in 1999; 2. Removal of the regulated spring-summer closed season in the fishing year; and, 3. Increased fuel prices. They believe the increased overlap is negatively affecting the cultural, social and economic fishing values of recreational fishers in CRA 3. The customary and commercial sectors believe low stock abundance is the primary cause of reduced fishing values, and that all fishing and non-fishing sectors are equally affected. The customary and commercial sectors note that (1) and (2) above may have encouraged both recreational and commercial fishers departing from Gisborne to fish nearer to the city. The commercial sector note also that they apply a voluntary commercial closure from 15 December to 15 January to provide unhindered access to the fishery for non-commercial fishers during the popular summer holiday period. Risk: Current risk to achieving this objective is HIGH. Objective (K): Fisher concerns about inequity of access to rock lobsters in the CRA 3 fishery is reduced Assessment: Are we on track? Risk: Fisher concerns about inequity of access to rock lobsters in CRA 3 is assessed as high. The recreational sector believes the winter commercial concession provides an access advantage to commercial fishers that is negatively affecting the cultural, social and economic fishing values of recreational fishers in the fishery. The customary and commercial sectors believe low stock abundance is the cause of reduced fishing values, and that all fishing and non-fishing sectors are equally affected. They note the winter commercial concession is taken into account when setting the TAC and when allocating catch allowances. The commercial sector notes the recreational sector also has access advantages - in May during the regulated commercial closure and from 15 December to 15 January during the voluntary commercial closure. Current risk to achieving this objective is HIGH. 28 Third CRA 3 Working Group Draft

35 6.4 Management Tools and Services The assessment shows that management action is required to ensure Goal 4 objectives can be met. Management activity will be focussed in the following areas: Goal 4 Management Tools xii Introduce closed seasons in statistical areas 909 (East cape) and 910 (Gisborne); and Remove the winter commercial concession in statistical area 911 (Mahia) Tool (xii): Introduce closed seasons in statistical areas 909 (East Cape) and 910 (Gisborne); and Remove the winter commercial concession in statistical area 911 (Mahia) Introducing closed seasons in areas 909 and 910 and removing the concession from area 911 is a tandem tool strategy. Stakeholders agree that inter-sector conflict was low and all fishing and non-fishing sectors held low levels of concern about spatial overlap and inequity of access between 1995 and The key differences between the period and recent years are: Stock abundance between 1995 and 2001 was significantly higher than today Regulated closed seasons applied to recreational from 1 September to 30 November and to commercial fishers from 1 September to 31 January. Goal 1 tools (ie, Tools (i) (iii)) address stock abundance issues, and all fishing sectors agree that these tools are crucial to achieving Goal 4 objectives. Introducing the following similar closed seasons in statistical areas 909 and 910 would also contribute to Goal 4 objectives: Regulated closed seasons to recreational from 1 September to 31 October (both days inclusive) Regulated and/or voluntary closed seasons to commercial fishers from 1 September to 15 January (both days inclusive) Voluntary closed season (or rahui ) to customary fishers from 1 September to 31 October (both days inclusive). The closed seasons would reduce spatial overlap in the CRA 3 fishery for a longer period over summer and would reduce perceptions of inequity of access by increasing the access advantage provided to recreational during their most popular fishing months. CRA 3 fishery information shows the historical closed seasons had significant negative impacts on commercial fishermen in statistical area 911 (Mahia). Retaining existing fishing seasons while removing the winter commercial concession in Third CRA 3 Working Group Draft

36 would minimise negative impacts on commercial fishers in 911 whilst still acting to reduce perceptions of inequity of access between sectors. Priority for Action: Process(es) Service Provider Preferred Timeframe Tasks: HIGH MFish Regulatory Round; Stakeholder Processes MFish; Stakeholder Organisations 1 April 2009 Implementation 1. Progress regulatory changes through MFish regulatory round 2. Progress voluntary changes through stakeholder networks, as appropriate 3. CRA 3 Working Group customary representatives to encourage and support implementation of customary rähui Other Management Tools and Services Considered Other management tools considered to ensure Goal 4 objectives can be met were: Closing areas (including closing areas to commercial near Gisborne) Customary tools (including 186a area closures, mätaitai and taiapure) Removing the winter commercial concession (including a range of removal options) Limits on commercial pot numbers These tools either did not achieve cross-sector agreement (eg, introducing closed areas to commercial near Gisborne) or were considered unsuitable or less effective than the tools chosen (eg, customary tools). The contribution to Goal 4 of tools considered unsuitable or less effective were generally indirect or highly uncertain. 6.5 Performance Monitoring Goal 4 objectives will be monitored using the following performance indicators: Objective Performance Indicators G CRA 3 fisher survey show a 50% decrease (from baseline) in fisher concerns about sector overlap and access inequities 2yrs and 4yrs after implementation of new tools 30 Third CRA 3 Working Group Draft

37 For Goal 4, implementation progress will be monitored using the following indicators: (a) Closed seasons implemented in areas 909 and 910 within agreed timeframe (b) Winter commercial concession removed in area 911 within agreed timeframe. 31 Third CRA 3 Working Group Draft

38 32 Third CRA 3 Working Group Draft

39 7.0 IMPLEMENTATION PLAN What do we need to do, when and how, to achieve our fishery goals? 7.1 Summary of Management Tools and Services The following table summarises the proposed new tools and services for the CRA 3 fishery. The table includes the priority given to implementation of each tool or service and identifies who will provide the tool or service. Management Tools and Services Priority Service Provider Goal 1 A Sustainable CRA 3 Fishery i Develop, test and implement a management procedure to guide TAC setting in the CRA 3 fishery High NRLMG RLFAWG ii Develop and implement an education strategy on the CRA 3 fishery and on CRA 3 management tools and rules High CRA 3 WG iii Develop, distribute and promote a crosssector code of practice on handling rock lobster High CRA 3 WG Goal 2 Quality Information for Decision-Making iv Develop and deliver an education and resource package on customary catch reporting High CRA 3 WG Customary Representatives v Through submissions, support nationallevel activities that improve recreational catch information Low CRA 3 WG Sector Representatives vi Complete a feasibility study looking at using regional sector networks to better estimate CRA 3 recreational catch High CRA 3 WG Recreational Representatives vii Complete a feasibility study looking at using pre-recruit information to inform management of the CRA 3 fishery Low CRA 3 WG Commercial Representatives viii Develop and deliver an education package on environmental factors affecting rock lobster abundance Medium CRA 3 WG 33 Third CRA 3 Working Group Draft

40 Goal 3 A Healthy CRA 3 Fisheries Environment ix Identify risks to important CRA 3 habitats arising from terrestrial and marine activities and engage with council processes to ensure these risks are considered Medium CRA 3 WG Sector Representatives x Complete a cost-benefit analysis of habitat creation within CRA 3 Low CRA 3 WG Commercial Representatives xi Participate, as appropriate, in fisheries management processes dealing with CRA 3 rock lobster predator species Low CRA 3 WG Stakeholder Representatives Goal 4 A Fishery for All Sectors xii Introduce closed seasons in statistical areas 909 and 910; and Remove the winter commercial concession in statistical area 911 High MFish CRA 3 WG Commercial & Customary Representatives 7.2 Implementation Timetable Included below is a calendar showing the preferred timing for progressing each management tool and service. As noted in section 1.4, the implementation timeframes in the calendar are a guide only. The ability to undertake actions and meet timeframes is subject to available resources, including, for example, the availability of MFish resources to write and consult on regulatory proposals, the availability of specialist science resources to complete a research project, or the availability of stakeholder resources to develop a feasibility study or education tool. 34 Third CRA 3 Working Group Draft

41 Management Tools Jul- Sep Develop and implement a management procedure Oct- Dec Jan- Mar Apr- Jun Jul- Sep Oct- Dec Jan- Mar Apr- Jun Jul- Sep Oct- Dec Jan- Mar Apr- Jun Jul- Sep Oct- Dec Jan- Mar Apr- Jun Jul- Sep Oct- Dec Jan- Mar Apr- Jun i ii Develop an education strategy on the CRA 3 fishery, tools, and rules iii Distribute and promote a cross-sector handling code iv Develop an education & resource package for customary reporting v Support national initiatives that improve recreational catch information vi Complete a feasibility study to better estimate recreational catch vii Complete a feasibility study to look at using pre-recruit information viii Develop an education package on the influence of environmental factors ix Identify risks to important habitats & participate in processes to manage risks x Complete a cost-benefit analysis of CRA 3 habitat creation xi Participate in processes dealing with CRA 3 lobster predator species xii Introduce closed seasons in 909 and 910; and Remove concession in 911 KEY Development & Implementation Stage Ongoing Implementation required

42 36 First CRA 3 Working Group Draft For Sector Group Input December 2007

43 8.0 MONITORING AND REVIEW PLAN Are we getting the results we want or do we need to change our plan? 8.1 Summary of Fishery Performance Indicators The following table summarises the performance indicators that will be monitored to measure performance against objectives. Performance Indicators Goal 1 A Sustainable CRA 3 Fishery CRA 3 stock is maintained at or above the specified management procedure target with the specified high probability CRA 3 illegal take is estimated at 45 tonnes in 2013 CRA 3 fisher surveys* show a 50% increase (from baseline) in fisher knowledge of best-practice lobster handling procedures 2yrs after release of the code of practice. Goal 2 Quality Information for Decision-Making 80% of CRA 3 customary permit issuers reporting their catch by 2013 Uncertainty associated with the CRA 3 recreational catch estimate reduced by 2015 CRA 3 fisher surveys* show a 50% increase (from baseline) in fisher knowledge of environmental factors affecting rock lobster abundance by Goal 3 A Healthy CRA 3 Fisheries Environment Councils operating in CRA 3 consider the impacts of all potentially harmful terrestrial and marine activities on important rock lobster habitats by 2013 Participation at 50% of fisheries management processes dealing with CRA 3 lobster predator species annually Goal 4 A Fishery for All Sectors CRA 3 fisher surveys* show a 50% decrease (from baseline) in fisher concern about sector overlap and access inequities 2yrs and 4yrs after implementation of new tools. *A CRA 3 fisher survey will be developed in The survey will be undertaken bi-annually (every two years) beginning in Third CRA 3 Working Group Draft

44 8.2 Monitoring and Review Plan The CRA 3 Forum will meet annually to track CRA 3 fishery performance against CRA 3 fishery goals and objectives. The CRA 3 Forum will update sections of the plan to reflect new information as required, and will conduct full reviews of the plan at appropriate intervals (approximately 5-7 years but earlier if required). 38 Third CRA 3 Working Group Draft

45 APPENDIX 1: THE CRA 3 MULTI-STAKEHOLDER FISHING FORUM A1.1 The CRA 3 Forum The CRA 3 Forum operates at two levels: The CRA 3 Forum, which comprises tāngata whenua and fishery stakeholder representatives, and is the decision-making group; and The CRA 3 Forum Working Group (the CRA 3 Working Group), which is a smaller group of Forum representatives. The Working Group completes analyses of topical issues between Forum meetings and provides the Forum with recommended courses of action. The CRA 3 Working Group is also responsible for drafting CRA 3 Forum documents. An independent contractor chairs and facilitates CRA 3 Forum meetings. The CRA 3 Working Group is chaired by Working Group members and facilitated by MFish. MFish was initially invited to attend meetings of the CRA 3 Forum as an observer. However, in July 2007, the CRA 3 Forum agreed to work with MFish and use a Fisheries Plan-type approach to develop a management plan for CRA 3. In 2008, the CRA 3 Working Group membership is: Member Representing CRA 3 Forum members from: Gordon Aston Morehu Cooper Stan Pardoe Hilton Webb Alain Jorion Angus Ngarangioue Gordon Halley Mark Ngata Alicia McKinnon Leigh Mitchell [Te Runanga o Ngati Porou] Mahia Maori Committee Te Runanga o Turanganui a Kiwa Gisborne Tatapouri Sports Fishing Club and affiliates Adventure Dive Education, Catchy Charters, Dive- Tatapouri-Dive Expeditions, Gisborne Surfcasters, Gisborne Tatapouri Sports Fishing Club, Mahia Boating and Fishing Club, Sportsworld Diving, Surfit Charters, Touchwood Charters, Tourism Eastland Maori recreational fishing rights (representative of ) CRA 3 Commercial Stakeholder Organisation CRA 3 Commercial Stakeholder Organisation Ministry of Fisheries Ministry of Fisheries 39 Third CRA 3 Working Group Draft

46 A1.2 Forum Purpose and Forum Goals The CRA 3 Forum has the following stated purpose: To develop, implement and manage an integrated fisheries management plan for the CRA 3 fishery The CRA 3 Forum has set operational goals and principles. These are: Goals Principles Sectors Working Together 1. The views and aspirations of each sector are respected 2. Agreed decision-making and communication processes are followed Forum Work Communicated Effectively 3. Sector representatives communicate matters and seek the views of constituents before coming to the Forum table 4. The Forum communicates regularly with the general public Forum Recognised by the Ministry of Fisheries 5. The Forum becomes the key reference point for discussion and resolution of CRA 3 fishery matters 6. The Ministry of Fisheries gives regard to, and has respect for, decisions made by the Forum A1.3 Terms of Reference The CRA 3 Forum has Terms of Reference governing its operation. These terms were agreed at the CRA 3 Forum meeting held on 24 July 2006: CRA 3 Forum Participants 1. Each individual at the Forum is mandated by one of three CRA 3 sectors: Commercial, Customary, Recreational. 2. It is agreed that the Forum is looking for local solutions to local problems, therefore Forum participants are to be mandated representatives of local entities. 3. Invited participants may be useful/acceptable as long as agreed in advance by the Forum or Working Group. 40 Third CRA 3 Working Group Draft

47 CRA 3 Forum Procedures Decision-Making 4. Decision-making is by consensus as long as dissenting minority views be noted in any reports that are made public outside of the Forum. Working Group 5. A small Working Group be established to develop proposals that have had input from each sector s perspective. These proposals would then be put to the multi-stakeholder Forum. 6. Working Group to comprise 2 or 3 customary representatives, 1 or 2 commercial representatives, and 1 or 2 recreational representatives with an independent facilitator. 7. The role of the Working Group is to work on issues identified by the Forum, prepare background papers for the Forum as relevant, and to bring options and/or recommendations to the Forum. 8. The Working Group to propose priorities and a timeline in terms of addressing key issues. 9. Working Group to be supported by a minute taker. 10. It was agreed to use interim Working Group members until replacement or confirmation advised. Agenda and Minutes 11. The Working Group is responsible for setting the agenda, and where possible this will have been determined at the previous Forum. 12. Target having the Forum agenda and working papers to facilitator 10 days prior to enable participants to receive papers a week prior to the Forum. 13. Mandated Forum participants who seek to put an item on the agenda to submit through the Working Group. 14. Contract independent minute taker to take comprehensive notes of the Forum proceedings. 15. Official minutes to focus on decisions taken, and who is to do what to progress any issues identified and to implement decisions. 16. That Forum minutes be sent to National Rock Lobster Management Group only. Process to be used for addressing agreed Forum issues 17. Each Working Group member to prepare a paper from their sector s perspective for tabling at the Forum. 18. Limit briefing papers to one page if at all possible min presentation of each key perspective at beginning of Forum. 20. The Forum to debate and supplement. 21. The Forum to charge the Working Group with putting forward options & recommendations for the next Forum to debate. Communication Outside the Forum 22. Work in progress to be kept in house if it is thought that it may be open to misinterpretation if it is at an early stage in development. 23. The Forum is an in-house meeting with all public statements resulting from the Forum agreed by the meeting. 41 Third CRA 3 Working Group Draft

48 24. There is no approval to talk with the media on behalf of the Forum. 25. Media statements made are to be in writing and approved in advance by the Forum. 26. If the media seek an interview, written questions can be submitted. Forum Meetings weekly at 5pm on a Monday evening for 2 hours. Forum Funding 28. Funding assistance to be sought from Ministry of Fisheries for Forum. 29. Sector should pay for the sector representative s time spent doing background work for the Working Group. Priority Issues 30. It was agreed that winter size concession for the commercial sector be the first issue considered. 42 Third CRA 3 Working Group Draft

49 APPENDIX 2: CRA 3 FISHERY PROFILE The CRA 3 Fishery Profile documents the best available biological, social, cultural, economic, management and services information for the CRA 3 Fishery. A2.1 Biological Information This section presents biological information on the New Zealand red rock lobster, Jasus edwardsii and the CRA 3 fishery. A2.1.1 Lifecycle The lifecycle of the red rock lobster is shown in Figure 2. Red rock lobsters pass through a series of developmental stages from fertilised egg to adult. Figure 2: Rock lobster lifecycle. Female lobsters reach sexual maturity and are able to mate at about 34 77mm tail width (TW) (about mm carapace length (CL)), depending on locality. Mating generally occurs in autumn (February to May) after the female moults (the female shell does not need to be soft for mating to occur, but mating is probably more successful if it occurs from a few hours to about 5 weeks after the moult). The female lays eggs immediately after mating and attaches them to pleopods (swimming legs, also used to brood eggs) on the underside of her tail to develop. 43 Third CRA 3 Working Group Draft

50 Female lobsters can carry up to 1 million eggs, depending on size and generally bear eggs once per year from April to October. The eggs develop for about 3 6 months before hatching into short-lived planktonic larvae, called naupliosoma. The nauplisoma rapidly develop into leaf-shaped phyllosoma larvae, which pass through 11 developmental stages during the months spent free floating in the ocean. The last phyllosoma stage metamorphoses into the puerulus larvae and on settlement onto suitable substrate, puerulus larvae moult into juvenile rock lobsters. A2.1.2 Distribution In New Zealand, red rock lobsters occur from Three Kings Islands in the north to the Auckland Islands in the south, and east to the Chatham Islands. Individuals are also found on shallower seamounts to about 300 metres throughout the Exclusive Economic Zone (EEZ). Red rock lobsters are most commonly found on or near rocky intertidal reef platforms in the CRA 3 fishery. Rocky reef crevices provide rock lobsters with an ideal habitat to shelter from predators during the day. A2.1.3 Larval Distribution and Recruitment Red rock lobster larvae have been observed tens to hundreds of kilometres offshore. Most late-stage phyllosoma larvae occur beyond the edge of the continental shelf and up to 1100 kilometres from the coast. It is thought these late stage larvae may be able to delay development into the puerulus stage until they encounter environmental cues that indicate suitable habitat to settle on may be nearby (such as lower salinity shelf water). Puerulus larvae settle mainly on rocky habitats at depths less than 20 metres. The main settlement season for puerulus larvae in CRA 3 is from April to October. The number of pueruli that settle varies between areas and from year to year. Puerulus settlement may be affected by environmental factors, such as ocean currents and temperature, and the persistence of southerly storms. High settlement levels were observed along the North Island east coast (including CRA 3) during the years: 1981, 1983, 1987, 1991, 1992, and Settlement since has declined markedly (except for a moderate year in 1998) and reached the lowest level observed in From 2000 there has been a recovery in settlement levels, with near the long-term average. It is thought the low levels of settlement observed along the east coast in 1999 were probably due to La Nina weather conditions rather than offshore phyllosoma abundance. Large numbers of puerulus larvae die before ever reaching suitable habitat. This is mainly to do with bottom feeding fish eating them but, as noted above, may also be a result of unfavourable environmental conditions. A2.1.4 Age and Growth Rock lobsters increase in size, by shedding (moulting) their shell. Moulting makes it difficult to age rock lobster, so indirect techniques, such as analysis of size-frequency distributions and tagging experiments, are used to estimate growth rates. Rock lobsters are known to be relatively slow-growing and long-lived. Rock lobsters may live for over 40 years and can reach sizes of 200 mm CL. 44 Third CRA 3 Working Group Draft

51 Growth rates vary with location. In Gisborne, male and female rock lobsters both reach about 38mm CL one year after settlement and about 58mm CL after two years. In most areas of New Zealand, moulting is highly seasonal, with immature and mature lobsters of both sexes having their distinct moulting periods. Moult frequency decreases with increasing age and size. Males of 70-80mm CL from most areas moult twice per year with larger males moulting once per year or even less. Females usually moult twice per year until they reach sexual maturity, then once per year. In Gisborne, the main lobster moulting period is believed to be in Spring (September), with a secondary moulting period during Autumn (April/May). A2.1.5 Movements Rock lobster movement information is collected from tagging programmes. Largescale migration of rock lobsters is seen in some areas (the south coast of the South Island), however, in CRA 3 movements appear generally to be limited with most tagged lobsters (94%) being recaptured within 5km of their release site. These short-distance movements are assumed to relate mainly to foraging. A2.1.6 Abundance of rock lobster At regular intervals, scientists estimate the size of the CRA 3 stock using the best available information from the fishery. From the stock assessment model, scientists also estimate the amount of lobsters that can be sustainably taken. The main dataset used in the CRA 3 stock assessment is commercial catch rate data (catch per unit pot lift or CPUE). CPUE is assumed to generally follow the same pattern as stock size over time. The stock assessment for CRA 3 was last updated in Figure 3 shows the estimated size of the CRA 3 stock through time. The first graph shows the size of the vulnerable stock during the autumn-winter (AW) season April through September, and the second graph shows the size of the stock during the spring-summer season October through March. 45 Third CRA 3 Working Group Draft

52 Figure 3: Estimated CRA 3 stock size, from autumn-winter (AW) and spring-summer (SS) seasons. The stock available to the fishery varies seasonally because of the biology of lobsters and the rules around taking lobster in CRA 3. The size of the spring-summer stock is affected by the availability of females and the male moult which occurs in spring. Both factors mean lobsters previously not able to be taken become available to the fishery. The size of the autumn-winter stock is affected (since ) by the winter commercial concession (when the commercial minimum legal size for male lobsters reduces from 54mm to 52mm). Figure 3 shows a trend of decreasing stock size from the 1940s to the early 1970s. The CRA 3 stock was estimated to be at its lowest level in the autumn-winter season of The stock then increased sharply form 1992 to 1998 and then decreased. 46 Third CRA 3 Working Group Draft

53 A2.2. Social, Cultural and Economic Information Red rock lobsters are highly valued by customary, recreational and commercial fishers. This section presents information on the value of the CRA 3 fishery to CRA 3 fishery stakeholders. A2.2.1 Customary Sector The customary sector is tāngata whenua (iwi, and hapu) of CRA 3. Tāngata whenua are integrally linked to the land and sea, and fish for spiritual well-being, economic well-being and to sustain whänau and the marae. Consequently, tāngata whenua actually participate in all three fishing sectors. Customary fishing is defined as non-commercial fishing under the authority of a customary fishing permit. Customary fishing permits are issued either under the Fisheries (Kaimoana Customary Fishing) Regulations 1998 (the Kaimoana Regulations) or under Regulation 27A of the Fisheries (Amateur Fishing) Regulations 1986 (r 27A). Under the Kaimoana Regulations, iwi and hapü groups decide who has tāngata whenua status over an area (rohe moana). The groups with tāngata whenua status choose people to act as guardians (Tāngata Kaitiaki) for the rohe moana, and these Tāngata Kaitiaki are formally appointed by the Minister of Fisheries. Tāngata Kaitiaki manage customary fishing within their rohe moana, and are responsible for issuing customary fishing permits. Tāngata Kaitiaki can also apply for mataitai reserves over traditional fishing areas within their rohe moana. Regulation 27A applies in areas without Tāngata Kaitiaki appointed under the Kaimoana Regulations. Under r 27A, authorised representatives of a marae committee, Māori committee, Runanga or Māori Trust Board can issue a customary fishing permit for the taking of fish for important events like hui and tangi. Profile of customary sector A large number of tāngata whenua groups (iwi and hapu) have links to the CRA 3 fishery. The recognised coastal iwi within CRA 3 include: Ngati Porou Te Aitanga a Mahaki Rongowhakaata Ngai Tamanuhiri Rongomaiwahine Ngati Kahungunu Within CRA 3, two iwi and two hapu have Tāngata Kaitiaki appointed for specified rohe moana under the Kaimoana Regulations (refer Figure 4). (Please note: only the southern portion of Te Whanau a Hunaara rohe moana falls within CRA 3). 47 Third CRA 3 Working Group Draft

54 Figure 4: Rohe moana of iwi and hapu with Tāngata Kaitiaki appointed under the Kaimoana Regulations in CRA 3 Iwi and hapu also have strong connections to particular traditional fishing places within CRA 3. Iwi and hapu retain information on the location of these traditional fishing areas. In some instances, iwi and hapu may use customary fishing tools (mätaitai reserves, taiapure or s 186 Temporary Closures) to improve or assure customary value in important traditional fishing areas. No customary fishing tools currently apply in CRA 3, however Ngati Konohi and Te Whanau-a-Hunaara are currently progressing mätaitai reserve applications. Customary use of CRA 3 rock lobster Rock lobster (koura papatea) are a highly valued kaimoana species, however, MFish has little data on the quantity of rock lobster harvested under customary fishing permits. Although reporting requirements exist under the Kaimoana Regulations, these regulations are relatively new and the framework for collecting and storing this information is incomplete. In the future, catch reporting records will provide an indicator of use. Customary Fishing Methods In CRA 3, potting and hand gathering are the preferred customary fishing methods. 48 Third CRA 3 Working Group Draft

55 Customary Values The customary values associated with fishing for koura include: Whakapapa (ancestral descent signifying links to the whenua (land) and the ätua (gods)) Whanaungatanga (kinship and the rights, responsibilities and expected modes of behaviour that accompany it) Rangitiratanga (respect for whānau, hapū and iwi autonomy) Kaitiakitanga (the practice of environmental stewardship, and also the role of specific species as kaitiaki or guardians) Protection of mauri (sustaining a healthy marine environment, including spiritually) Practice of tikanga (the customs and traditions that have been handed down through the passages of time) Manaakitanga (the principle of hospitality and also the ability to uphold the mana of the marae through the provision of favoured species of kaimoana like rock lobster) Ability to provide for the range of traditional customary uses such as hui, tangi, papakäinga and marae needs, and obligations to provide food for others). Although listed here as customary sector values, these values are relevant to tāngata whenua whether they are participating in the customary, recreational or commercial sectors. A2.2.2 Recreational Sector The recreational sector in CRA 3 comprises tāngata whenua, CRA 3 residents and visitors to the region who harvest fish in a manner consistent with the Fisheries (Amateur Fishing) Regulations 1986 and the Fisheries (Central Fishery Management Area Amateur Fishing) Regulations Profile of recreational sector The number of participants in the recreational sector in CRA 3 is unknown and varies annually because the region attracts varying numbers of domestic and international visitors who participate in fishing activities. Some locally-based recreational fishers belong to fishing clubs, and it is these clubs that tend to be most active in representing recreational fishers on fisheries management issues. However, it must be recognised that the key focus of most fishing clubs is finfish fishing. Fishing clubs in CRA 3 include: Affiliates to New Zealand Recreational Fishing Council and Big Game Fishing Council: Gisborne Tatapouri Sports Fishing Club (approximately 2760 members) Mahia Boating & Fishing Club (approximately 616 members). 49 Third CRA 3 Working Group Draft

56 Affiliates to New Zealand Angling and Casting Association: Gisborne Surfcasters Inc Paikea Fishing Club Wairoa North Clyde Surfcasting Club Wairoa Surf casting Club. Others Anaura Bay Fishing Club Tolaga Bay Boating and Fishing Club Tokomaru Bay Fishing Club Waipiro Bay Fishing Club Te Araroa Fishing Club. Rock lobster is a popular recreational species. Many localities within CRA 3 are popular among recreational fishers and to some extent, the popularity of a particular fishing spot is dependant on accessibility. Popular locales in CRA 3 include: Mahia Peninsula, Gisborne Town area, Makorori Beach, Tatapouri and a number of East Coast Bays including Anaura, Tolaga, Tokomaru and Waipiro. Recreational use of CRA 3 rock lobsters Recreational fishers are not required to report the quantities of lobster they catch so MFish contracts research surveys to estimate recreational catch. Information on recreational harvest in CRA 3 is limited and uncertain. Table 1 contains research estimates of recreational harvest of lobster from a series of regional and national surveys based on telephone interviews and a sub-sample of diarists. Table 1: Recreational catch estimates for CRA 3 Recreational survey Recreational Harvest Central Region Estimated number of lobsters Estimate (tonnes) National Diary Survey National Survey National roll-over Survey The results from the national survey and the subsequent roll-over survey tended to have higher catch estimates when compared to the earlier surveys. The Rock Lobster Working Group has little confidence in the accuracy of the estimates of recreational catch for CRA 3 from these surveys because of concerns about the methodology employed1. 50 Third CRA 3 Working Group Draft

57 There are curbs on recreational fishing, and therefore use, through daily bag limits, minimum sizes, method controls and area restrictions. These restrictions are summarised in Section 3 of this Fishery Profile - Input Controls and Technical Measures, Page 62. Recreational Fishing Methods In CRA 3, hand gathering and potting are the preferred recreational fishing methods. Recreational Values The values recreational fishers associate with CRA 3 include: Availability of lobsters in reasonable quantities in accessible places Good catch rates (eg, the ability to catch up to six lobsters per person, per day, with only three pots) Access to good sized lobsters in popular recreational areas Lobsters in good condition (eg, not affected by black rot ) An enjoyable outdoor experience The ability to provide for family/whänau or friend Low participation costs (which relates to accessibility of lobsters in popular recreational areas) and includes low fuel costs and the purchase of a small boat. Possible health benefits from eating fish high in omega-3 fatty acids Family unity from the experience of catching lobsters to preparing them for cooking Enjoyment gained from buying a boat, pots and gear to catching bait for pots. As noted, tāngata whenua are also recreational sector participants and therefore the values listed for the customary sector are also relevant. A2.2.3 Commercial Sector The commercial sector in CRA 3 comprises CRA 3 quota owners, CRA 3 Annual Catch Entitlement (ACE) holders, and CRA 3 Licensed Fish Receivers. Profile of commercial sector The NZ Rock Lobster Industry Council (NZ RLIC) represents New Zealand's nine regional rock lobster fisheries commercial stakeholder organisations. Each regional CRA Management Area Council (CRAMAC 1 9: derived from rock lobster Quota management areas) draws membership and mandate from quota owners, ACE fishers, permit holders, processors and exporters. CRAMAC Quota owners vote for final decisions on issues like TAC/TACC and levy changes. Other CRAMAC members vote in electing officials and items of general business. 51 Third CRA 3 Working Group Draft

58 Each CRAMAC has an appointed representative on the NZ RLIC. The NZ RLIC coordinates and delivers industry advocacy and also contracts the delivery of seasonal processes including stock assessment. The CRAMAC for CRA 3 is called the Tairawhiti Rock Lobster Industry Association (previously known as the CRA 3 Industry Association). Rights to harvest the CRA 3 commercial catch (the TACC) are currently distributed amongst 39 quota share owners. Quota share owners can fish the quota themselves or lease the quota to other entities to fish. Licensed Fish Receivers (LRFs) receive and process rock lobster. The main LFRs engaged in processing rock lobster from the CRA 3 fishery include: Moana Fishing, Gisborne Fisheries, Fiordland Lobster Company, and Port Nicholson Fisheries. Commercial use of CRA 3 rock lobsters Information on the commercial catch in CRA 3 is collected from commercial catch reporting forms. Commercial fishers must land and report all rock lobster taken, excepting undersized lobsters and some conditions listed under the 6th Schedule of the Fisheries Act (see sub-section A2.3.3 of this Fishery Profile - Input Controls and Technical Measures, Page 67 for further details) The commercial catch in CRA 3 varies as a result of changing catch limits (the Total Allowable Commercial Catch or TACC) and changing abundance of rock lobster. Since 1990, commercial catches in CRA 3 have ranged between tonnes and tonnes annually (Figure 5). Figure 5: Reported commercial catch from quota management reports (QMRs) or monthly harvest returns (MHRs) (after 1 October 2001), and TACCs for CRA 3 Catch (t) Catch TACC Fishing Year 52 Third CRA 3 Working Group Draft

59 Commercial CPUE is assumed to be an indicator of abundance in New Zealand rock lobster fisheries. Standardised autumn-winter (1 April to 30 September) CPUE for CRA 3 is shown in Table 2, with associated standard error. CRA 3 CPUE shows a steady increase from the early 1990s to a peak in , followed by a decline to a level somewhat higher than observer in the early 1990s. Table 2: Standardised autumn-winter (AW) CPUE for CRA 3, to , with associated standard error Fishing year Standardised AW CPUE Standard error Third CRA 3 Working Group Draft

60 The CRA 3 commercial catch is distributed over three reporting areas (called statistical areas). These reporting areas (909, 910 and 911) are shown in Figure 6. Figure 6: CRA 3 statistical areas used for reporting Figure 7 shows the catch taken from each statistical area since Prior to 2001, statistical area 910 contributed the largest proportion of the CRA 3 catch whilst statistical area 909 contributed the least. From 2000, the proportion of catch taken from statistical area 911 increased (exceeded that taken from 910 in the years to ). This is probably the result of transferred commercial effort after establishment of the Te Tapuwae o Rongokako marine reserve in statistical area 910 in This shift may have also have arisen from other changes in the fishery, for example a decrease in abundance and seasonal variability in lobsters between statistical areas. 54 Third CRA 3 Working Group Draft