Annex 2

option4 Rebuttal of Kahawai IPP 2004

When a species is introduced into the Quota Management System (QMS) the Ministry of Fisheries issues its suggested management proposals to the Minister in an Initial Position Paper (IPP). The Minister uses this information to base his final decision on when setting the TACC and allowing for the public and customary Maori fishers.

option4 are concerned about the absence of full catch history information on kahawai provided in Annex 2 to the Minister. Without this information the IPP does not reflect the history of the development of the purse seine fishery.

KEY: Black text is IPP

        Blue text is option4 comment.

KAHAWAI (KAH)

ANNEX TWO

Species Information

Species biology

78. Kahawai ( Arripis trutta ) occurs throughout New Zealand, the Kermadec and Chatham Islands as far south as Foveaux Strait. They are most abundant around the North Island and northern South Island.  A. xylabion (northern kahawai), although having a longer tail fin, can be difficult to distinguish from A. trutta . This species is commonly found at the Kermadec Islands and although rare around mainland New Zealand, is found in northern latitudes.  A. trutta and A. xylabion is included in the QMS as a species assemblage.
79. Kahawai live in a variety of habitats, ranging from tidal intrusions into rivers, estuaries and coastal embayments, thought to open waters many miles offshore. Kahawai are most often found in surface schools of similarly sized fish often in association with schools of jack mackerels, blue mackerel and trevally. Schools of kahawai typically contain between 10-40 tonnes of fish.
80. Adult kahawai feed mainly on small pelagic fishes such as anchovies, pilchards and yellow-eyed mullet, but also on pelagic crustaceans, especially krill. Benthic species such as crabs and polychaetes are also eaten on occasion, especially during the summer months, when spawning takes place on the sea floor. Juvenile kahawai feed primarily on copepods.
81. Biological information suggests no differences in the growth rate, length weight relationship and onset of maturity between the sexes. The onset of maturity occurs at about 40 cm, which equates to ages of 3-5 years, growth rate is moderate and the maximum-recorded age of kahawai is 26 years. Natural mortality is unlikely to be higher than 0.2 and is likely to be close to this estimate.

Fisheries characteristics

Commercial catch

Catch and landing by QMA

82. Reported commercial landing summaries of kahawai for each QMA for the fishing years 1993–94 to 2002–03 are given in Table 3.

        Table 3.  Reported commercial landings (tonnes) of kahawai by QMA from 1993-94 to 2001-02.

83. Why do we not have a full catch history here? Between 1970-1975 the annual average commercial catch of kahawai was 500 tonnes, much for use as bait. However, fishing practices evolved to utilise this relatively low value commercial species. Since the mid 1970s purse seine vessels fish for skipjack tuna around the North Island over summer. For approximately five months of the year (December to May) the northern fleet, based in Tauranga, targets skipjack tuna ( Katsuwonus pelamis ).   When skipjack is no longer available during the winter and spring months the fleet fish for a mix of species including kahawai, jack mackerels ( Trachurus spp.), and blue mackerel ( Scomber australasicus ). These species are caught 'on demand' as export orders are received (to reduce product storage costs).
84. Reported landings of kahawai progressively increased from 1977-1980 stabilising at about 5 000 tonnes between 1980-1985 and increasing thereafter to peak at 9 800 tonnes during 1987-88.  Commercial landings of kahawai declined between 1988 and 1998. Landings thereafter have stabilised particularly in KAH 1 and KAH 2.
85. For the 1990-91 fishing year, the total commercial catch limit for kahawai was set at 6 500 tonnes, with 4 856 tonnes set aside for purse seining. While national catches decreased during 1991-92, landings in KAH 1 increased and for the 1993-94 the competitive catch limits for purse seining in KAH 1 were reduced from 1 666 tonnes to 1 200 tonnes and purse seine catches reported for KAH 9 were included in this catch limit. Since, despite fluctuating between 1993-94 and 2001-02, purse seine landings reported for KAH 1 have averaged 1 200 tonnes.
86. No changes have been made to the purse seine limit of 851 tonnes for KAH 2. The KAH 2 purse seine fishery was closed early each year between 1991-92 and 1995-96. Apart from a reduced purse seine catch of 200 tonnes reported for 1997-98, landings have been consistently around 800 tonnes per year.
87. The purse seine catch limit for KAH 3 was reduced to 1 500 tonnes from 1995-96. In the past a southern fleet, based in Nelson, fished exclusively for the mackerels and kahawai when fishing in southern waters. With the transfer of some of these vessels to Tauranga the purse seine catch in KAH 3 has declined from landing 1 500 tonnes in 1995-96 to 150 tonnes in 2001-02.

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Catch by fishing method

88. Total kahawai catch (tonnes) by main commercial fishing method for all QMAs combined from 1993-94 to 2002-03 is shown in Table 4.

       Table 4: Total kahawai landings (tonnes) by main commercial method for all QMAs                           combined, for fishing years 1992-93 to 2001-02:

         Note:        Fishing year '1991' is fishing year 1990 - 91.

89. Over the past nine years, catches by purse seining account for 75% of reported landings. Despite purse seine catch limits, catches by purse seining have fluctuated largely because of variable fishing effort in KAH 3.
90. Trawling, set netting, ring net, bottom pair trawl, longlining, Danish seine/beach seine, and trolling each accounted for lesser amounts.
91. The annual landings of kahawai taken by trawling remained relatively stable with most of the catches in KAH 8. Set net landings have declined, as a result of set net area closures and changes in fishing patterns.
92. Most of the bottom longline kahawai landings are reported from KAH 1. Landings have remained relatively stable through time.

Targeted catch and bycatch

93. Kahawai commercial landings by nominated target species for all QMAs combined in fishing years 1993-94 to 2001-02 are provided in Table 5

        Table 5: Total kahawai landings (tonnes) by nominated target species for all QMAs                           combined, for fishing years 1992-93 to 2001-02:

         Note: Fishing year '1994' is fishing year 1993 - 94.

94. Most kahawai is taken as a target species almost entirely by purse seining apart from a small amount by setnet. Target fisheries for jack mackerels, trevally, snapper and grey mullet, and occasionally blue mackerel, report bycatches of kahawai.

Number of vessels catching and landing

95. The number of vessels reporting landings of kahawai by year is shown in Table 6.
    
    Table 6: Number of landings of kahawai by vessel for fishing years 1993-94 to 2002-03

               [1] Fishing year '1993' is fishing year 1993–94

96. The number of vessels reporting landings of kahawai decreased between 1993-94 and 1998-99, however since then the number of vessels reporting kahawai has stabilised. The eight purse seine vessels operating in the fishery always take the bulk of the commercial catch.

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Recreational catch

97. Kahawai is one of the fish species most frequently caught by recreational fishers and the recreational catch estimate is 83% of the average commercial catch during the past five years. The size of the recreational fishery is restricted by the application of daily bag limits but there is no minimum legal size for kahawai.
98. A survey of the Value of New Zealand Recreational Fishing undertaken by the South Australian Centre for Economic Studies (SACES) compared kahawai fishers with other recreational fishers. Kahawai anglers are characterised as follows: they go fishing significantly more times per year and are more likely to fish for eating purposes. They are more likely to fish from jetty or land platforms and are slightly more likely to catch and keep additional fish. They have a lower average fishing expenditure, have a higher male participation and are more likely to be a member of a fishing club.
99. Obtaining estimates of the total recreational catch of kahawai is difficult. Recreational fishing surveys are designed to estimate the fish caught and killed by adult anglers. Many children target kahawai and kahawai is commonly used for live baiting when targeting other species. The survey estimates are likely to be an underestimate of the actual level of catch (and hence measure of fish available to the sector and the potential mortality associated with fishing). MFish considers that it is unlikely that survey estimates include all fish caught and landed, used as bait or released by the recreational sector. Since 1991 there have been four telephone and diary surveys conducted to estimate national landings by recreational fishers. Survey estimates for 1992-94, 1996 and 1999-00 are reported below. Preliminary results from the national survey undertaken in 2000-01 have been provided for KAH 2 and KAH 3 as the 1999-00 estimates are likely to be biased by a pool of diarists in those fishstocks that reported fishing much more extensively than any other fishers.
    
    Table 7. Recreational landings of kahawai (number of fish and tonnes greenweight) by QMA        for 1991–94, 1996, and 1999-2000.

          - no estimate

          # Based on preliminary results from the 2001 national survey

          * estimate pertains to FMA 9 only.

100. A national survey estimated annual recreational landings of kahawai during the 1991-94 period to be 1 800 tonnes. A national survey conducted in 1996 produced an estimate of 1 515 tonnes that was broadly consistent with the earlier estimate. However, the survey conducted in 1999-2000 produced an estimate of kahawai landings of 2 195 tonnes for KAH 1 (compared to 960 tonnes in 1996). There remains some doubt about the estimates from the 1996 and 1999-00 surveys. The uncertainty revolves around the participation rates of recreational fishers used in each survey. Those for 1999-2000 may be too high and those for 1996 may be too low. Assuming a common participation rate for both surveys will have the effect of lowering the 1999-2000 estimate and increasing the 1996 estimate.
101. The average of the two most recent estimates of recreational landings are proposed as the best basis for estimating current recreational utilisation. Because the recreational harvest surveys report on the fishstock codes an arbitrary amount (54 tonnes) was removed from the KAH 3 estimate and added to the KAH 9 estimate to account for area changes in establishing KAH 8.
102. Recreational groups have repeatedly expressed concern about the state of kahawai stocks. High percentages of respondents to readership surveys conducted by fishing magazines in 1989, 1990, 1993 and 1997 felt that the numbers of kahawai available to recreational fishers had declined in the years prior to each survey. In 1992 the Recreational Fishing Council (RFC) carried out a club/individual survey where 188 of 189 responses suggested this decline was at least 50%. In 1997 the RFC carried out a survey of recreational fishers in major fishing magazines. There were 2002 respondents of which 47% felt that kahawai stocks had ‘declined significantly’ and 32% felt that they had ‘declined a little’ over the previous five years. Recreational interests have expressed concerns about low kahawai catch rates seen in recreational fisheries. Boat ramp surveys conducted by MFish in 1991 and 1994 indicated that catch rates of kahawai by recreational fishers were <0.2 fish per hour, however, these values included trips targeting other species and therefore may be artificially low.

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Customary catch

103. No quantitative estimates of customary fishing for kahawai are available. A substantial level of customary catch could be anticipated. Maori have had an historic interest in kahawai and it is an important food source in some localities. The report from the Fisheries Assessment Plenary notes that Maori have concerns with respect to declines in traditional fisheries.
     

Regulatory Framework

104. The recreational daily bag limit for all areas is 20 kahawai per fisher if the one species is taken, otherwise as a mixed bag of 20. The minimum mesh size for recreational set nets targeting kahawai is 100 mm. There is no minimum legal size for kahawai.
105. Since 1990-91 commercial catch limits have applied to kahawai, with specific limits pertaining to purse seining. The current purse seine catch limit is 1 200 tonnes for KAH 1 and KAH 9 combined, 851 tonnes for KAH 2, and 1 500 tonnes for KAH 3 (FMAs 3-8). These catch limits are fished competitively. MFish monitors catches and closes each fishery if and when it is likely to be over caught.
106. Trawling and Danish seining have been prohibited within two nautical miles of much of the shoreline of the Bay of Plenty, for much of the Hauraki Gulf, and within one nautical mile of much of the north-western coast of the North Island. The reasons for these closures include protecting juvenile fish that often tend to congregate in near-shore waters, and spatially separating commercial trawl and Danish seine vessels and non-commercial fishers.
107. MFish notes that there have been voluntary agreements to restrict the commercial take of kahawai.

Fisheries assessment

108. A stock reduction model was used in 1996 to obtain estimates of virgin and current biomasses and MCY for a single nationwide kahawai stock with constant recruitment. A single stock was assumed in the absence of information to suggest separate stocks.
109. A number of biological assumptions were used in the model and these are provided below in Table 8. The most sensitive input parameter is the natural mortality of kahawai. If the natural mortality of kahawai is assumed to lie between 0.15 and 0.25 the model estimates MCY ranging between 5 100 and 14 200 tonnes (refer Table 9). However, recent analysis suggests the natural mortality for kahawai is unlikely to be higher than 0.2 and is likely to be close to this estimate. MFish considers a natural mortality of 0.2 for kahawai to be the best available information and accordingly proposes that MCY estimates based on that value be considered best available information.
110. The coefficients for relations with both sexes combined are given because no significant difference with sex could be detected.

    Table 8: Biological parameters used in the model

111. Catch curves derived for purse seine fishing in KAH 2, KAH 3 and KAH 9 during 1991-92 suggested a maximum value for total mortality of 0.31. Therefore, adjusting the maximum fishing mortality in any year so that the average fishing mortality and natural mortality combined was 0.31 probably made the estimates conservative. The average fishing mortality was calculated over the years 1980-92. As mentioned, recent analysis suggests natural mortality for kahawai is unlikely to be higher than 0.2 and is likely to be close to this estimate. Results of the model for various values of M (natural mortality) are provided below.

       Table 9 Estimates (tonnes greenweight) of virgin biomass (Bo) and biomass in 1996                    (B1996) compared to Bmsy. Fav is the average fishing mortality between 1980 and 1992.              Estimates are calculated for different values of natural mortality (M).

112. The above estimates are uncertain and depend on the model assumptions and input data. They may be regarded as conservative estimates as the estimates of total mortality in the model are based on maximum observed values. The catch history is uncertain due to uncertainties in the commercial catch records, and the non-commercial catch history is based on the 1996 survey. Estimates of MCY were calculated for a single national fishstock. MCY = pBo where p is determined from a method where the biomass does not go below 20% Bo more than 20% of the time.
113. The base case described for the above parameters provides the basis for the lesser MCY estimate. A sensitivity analysis was undertaken where the non-commercial catch was greater than that based on the 1996 harvest estimate. This has the effect of increasing estimates of Bo, Bmsy/Bo, B1996/Bo, and MCY and is the basis for the greater estimate of MCY provided in the range given in Table 9.
114. If the natural mortality of kahawai is assumed to lie between 0.15 and 0.25 the model estimates MCY ranging between 5,100 and 14,200 tonnes (refer Table 9). However, recent analysis suggests the natural mortality for kahawai is unlikely to be higher than 0.2 and is likely to be close to this estimate. MFish considers a natural mortality of 0.2 for kahawai to be the best available information and accordingly proposes that MCY estimates based on that value be considered best available information. Accordingly, the best estimate of MCY is between 7 600 and 8 200 tonnes.
     

       Table 10: Summary of yield estimates (tonnes greenweight), average reported                           commercial landings (t) for 1997–02 and recreational harvest (tonnes greenweight) as          estimated by the average of the 1996 and 1999-00 harvest surveys.

115. Combined estimates of recreational catch and reported commercial landings are currently within the range of MCY estimates.
116. There are two species of kahawai present in New Zealand waters, kahawai and northern kahawai. This assessment applies only to kahawai and nothing is known about the other species.

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Associated fisheries

117. Kahawai swim in schools of similar sized fish and often mix with those of other pelagic species such as jack mackerels (Trachurus spp.), trevally, blue mackerel and kingfish. They are associated with pelagic prey species such as juvenile jack mackerels, pilchards, anchovies, sprats, yellow-eyed mullet, whitebait and pelagic crustaceans such as krill.
118. Kahawai are themselves predated by other species such as kingfish, tunas and billfish and might be an important factor in the seasonal availability of these species.
     

Environmental Issues

119. Kahawai, as predators, form an important ecological relationship with its prey, some seabirds, and possibly with some marine mammals. Kahawai circle and herd schools of prey when feeding and in doing so make available the prey species to other predatory species. There is no information on whether current kahawai fishing activities are detrimental to the long-term viability of any other species.
120. Juvenile kahawai may suffer from habitat degradation in estuarine areas.
121. Within KAH 3 the kahawai purse seine fleet has voluntarily agreed not to fish in a number of nearshore areas around Tasman and Golden Bays, the Marlborough Sounds, Cloudy Bay, and Kaikoura since the 1991–92 fishing year. The main purpose of these agreements is to minimise both local depletion of schools of kahawai found inshore, and catches of juveniles. Similar areas outside KAH 3 have not been identified. There are no other known areas where biodiversity or habitats of significance to fisheries management are likely to be adversely affected by fishing for kahawai.
122. Kahawai is taken as a bycatch in trawl fisheries. The nature of trawling is that this method has an affect on the physical structure of the substrate and the benthic community structure. Most of the trawling where kahawai is taken as a bycatch is likely to occur in long-established existing trawl grounds where it is likely the original benthic community will have been modified. MFish does not anticipate that introducing kahawai into the QMS will result in new areas being trawled.

Current and Future Research

123. Current research has the objective of monitoring the status of the stock by surveying the length and age structure of the recreational catch over time.
124. The direct effects of purse seine fishing for kahawai on the environment has not been studied but are likely to be relatively minor. Research on the interrelationships between kahawai and other elements of the aquatic environment has been identified as an area for future consideration, however, this is a complex area of study and it is unlikely to be undertaken in the foreseeable future.
125. As mentioned, obtaining reliable estimates of recreational catch for kahawai has proved difficult. Further work to estimate, and to differentiate, recreational catches and landings are required.
     

Social, Cultural, and Economic Factors

126. The results of the SACES survey produced estimates of the value of the recreational fishery for kahawai based on non-market estimation techniques (contingent valuation to determine the willingness of a fisher to pay to catch a kahawai). These results were used to estimate the value of the recreational fishery based on the 1996 estimate of recreational catch of 1 515 tonnes.
127. The results estimate a total recreational expenditure of $158 million in 1996. It is important to note that total expenditure is not a measure of the net benefit of the fishery and cannot be directly compared to the value of kahawai taken commercially. Also of note is the fact that estimates of expenditure and value are based on what is likely to be an under-estimate of current recreational landings.
128. MFish considers that the best comparative measure of recreational value is determined from the marginal willingness to pay (the change in willingness to pay with respect to a unit change in the amount of fish caught and kept). Using the estimates provided by SACES of a marginal willingness to pay of $2 800 per tonne and capitalising this amount at rates of 5% and 10% provides a range of values from $28 000 to $56 000 per tonne.
129. Commercially caught kahawai is a relatively low value species although some is sold as a popular smoked product. Port price was $0.44 per kilogram greenweight during 2001-02. This price is comparable with that received for QMS species such as blue mackerel ($0.30) and trevally ($0.67-$1.27). In order to determine possible future quota value of kahawai MFish has assessed two comparable QMS species, blue mackerel and trevally. While the fisheries differ in scale and characteristics, the port prices of these three species are comparable. Like kahawai, blue mackerel and trevally are taken by purse seine. Like kahawai some trevally is smoked and both species are popular in this processed form on the domestic market. The average traded price for these species in 2001-02 was $1 700 and $5 100 respectively per tonne. These average prices suggest a commercial value for kahawai in the range of $1 700-$5 100 per tonne, which is approximately one sixteenth to one eleventh of the estimated value of one tonne of kahawai caught by recreational fishers.
130. However, there is considerable uncertainty in information used to assess utility in the absence of a market for tradable rights between sectors. This uncertainty relates to ability to compare non-market values (willingness to pay) with market values (price of quota) and the static nature of the value estimate. The estimate of value is valid only for the time the survey was undertaken. Since that time social, cultural and economic values may have changed.
     
     
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