Proposed Marine Reserve for Great Barrier Island

ACC report to City Development Committee
Author Matthew Patterson
6 May 2003

1.0 Summary and Conclusions

The Governments intention is to have 10% of New Zealand’s marine area in marine reserves by 2010. The Department of Conservation is preparing a marine reserve for the northern end of Great Barrier Island. This prompts a need to assess the impact of such a proposal on the district.

Currently, there are 18 gazetted marine reserves in New Zealand’s EEZ. A map indicating the location of marine reserves within New Zealand’s EEZ is provided in Appendix A. Five marine reserves are located within the Hauraki Gulf Marine Park with a further three marine reserves currently being proposed:

• Tiritiri Matangi Island Marine Reserve (proposed by New Zealand Underwater);
• Great Barrier Island Marine Reserve (proposed by DOC); and
• The Noises Marine Reserve (proposed by Auckland City Council)

By comparison, there are only five marine reserves around the whole of the South Island and none around Stewart Island or the East Cape. Even in areas considered to be of national or international significance, there is a scarcity of marine reserves:

• Milford Sound – 1 marine reserve of 690ha
• Marlborough Sounds – 1 marine reserve of 619ha
• Able Tasman – 1 marine reserve of 1835ha
• Doubtful Sound – 1 marine reserve of 93ha

Considering the Hauraki Gulf is the focal point for the establishment of marine reserves and also the playground and economic lifeline for New Zealand’s largest city, it is appropriate that a strategic approach be taken to the provision of marine reserves and competing interests.

It is recommended that the Committee support the development of an overall plan for the marine area of the Hauraki Gulf Marine Park and that the Council put a report to the Hauraki Gulf Forum recommending that the Forum endorse such an approach and undertake to develop the overall plan.

Should support for an overall plan not be forthcoming, Council still needs to determine the priority to give to the three marine reserve proposals currently being put forward. Council staff have reviewed the three proposals and recommend the following priorities be given:

• Great Barrier Island (High Priority)
• Tiritiri Matangi Island (Medium Priority)
• The Noises (Low Priority)

In addition to the above issues, the DOC has released a discussion document on their proposal for the marine reserve for the northeast coast of Great Barrier Island. The purpose of the discussion document is to gauge key stakeholder opinion on the proposal prior to the Department preparing a formal application. The Council has been asked to consider the proposal and respond to a questionnaire (attached as Appendix B).

As well as the issues raised in the questionnaire; there are a number of broader and strategic issues that the Council needs to consider regarding both this proposal and the provision of marine reserves within the Hauraki Gulf. Such issues include:

• the costs and benefits of this proposal to the Great Barrier Island community; and
• any alternatives to the proposal (e.g. reducing the scale, activities to be provided for within the reserve etc)

It is recommended that a working party be established to consider and respond to the proposal and to the questionnaire. The closing date for responding to the questionnaire was Monday, 30 June 2003 but has been extended to 31 July.

2.0 Recommendations

(A) That the development of an overall plan for the marine area of the Hauraki Gulf Marine Park is supported in principle.

(B) That the Manager Isthmus and Islands reports to the Hauraki Gulf Forum asking the Forum to support the initiative for an overall plan for the Hauraki Gulf and; that the Forum undertake to develop an overall plan for the provision of marine reserves within the Hauraki Gulf Marine Park.

(C) That the priorities for proposed marine reserves within the Hauraki Gulf Marine Park are:

• Great Barrier Island Marine Reserve (High Priority)
• Tiritiri Matangi Island Marine Reserve (Medium Priority)
• The Noises Marine Reserve (Low Priority)

(D) That a working party be established to formally respond to the discussion document outlining the Department of Conservation’s proposal for a marine reserve on the northeast coast of Great Barrier Island

(E) That the working party comprise of two representatives from the Great Barrier Island Community Board, a representative from the Strategy and Governance Committee, the Councillor for the Hauraki Gulf Islands Ward and a representative of the City Development Committee.

(F) That the City Development Committee delegates to the working party the authority to respond to the discussion document on behalf of the Council.

3.0 Narrative

3.1 Background
Council received, on the 28 March 2003, a discussion document from the Department of Conservation outlining the Department’s proposal for a marine reserve on the north-east coast of Great Barrier Island. The discussion document is part of the consultation process the Department is undertaking prior to preparing a formal application. The discussion document includes a questionnaire to gauge public opinion on the marine reserve proposal.

The deadline for returning the questionnaire is Monday, June 30.

3.2 Issues

Marine Reserves in New Zealand – The Current Situation

There are currently 18 marine reserves gazetted within New Zealand’s jurisdictional marine boundary. The national Biodiversity Strategy states a target of protecting 10% of New Zealand’s marine environment by 2010. Currently, the amount protected is approximately 4%.

The largest marine reserves are the Auckland Islands (484,000ha) and Kermadec Islands (748,000ha) marine reserves. These two reserves comprise 99% of the total area protected by marine reserves within New Zealand’s Economic Exclusive Zone (EEZ). By comparison, the largest marine reserve along the New Zealand mainland coastline is Kaptiti Marine Reserve at 2,176ha. The total area protected by marine reserves around the New Zealand mainland is only 15,550ha. The marine reserve proposed for Great Barrier Island is approximately 53,000ha, by far the largest proposed for the mainland to date.

Of the 18 gazetted marine reserve, five are located within the boundaries of the Hauraki Gulf Marine Park as defined by the Hauraki Gulf Marine Park Act 2000. These reserves are:

• Goat Island – Okakari Pt Marine Reserve (1975) – 518ha
• Long Bay – Okura Marine Reserve (1992) – 980ha
• Pollen Island – Motu Manawa Marine Reserve (1995) – 500ha
• Waiheke – Te Makutu Bay Marine Reserve (2003) –700ha
• Cathedral Cove – Te Whanganui-a-Hei Marine Reserve (1992) – 840ha

As well as the proposal for Great Barrier Island, there are two further marine reserve proposals for the Hauraki Gulf:

• Tiritiri Matangi Island (proposed by the New Zealand Underwater); and
• The Noises (proposed by Auckland City Council)

Both of these proposals are still in the discussion stage and the size of each is yet to be determined. However, it is anticipated that they would be approximately 1,000 –1,500ha each.

If the Great Barrier Island, Tiritiri Matangi Island and The Noises were to be gazetted, the Hauraki Gulf would boast 8 marine reserves with a total area of approximately 59,538ha. This would equate to 83% of the total area protected by marine reserves around the New Zealand mainland. Considering the size of the Hauraki Gulf, this is a substantial portion of marine area to have under marine reserve status, especially when you also consider that the Hauraki Gulf is the busiest stretch of water within New Zealand.

By contrast, in areas of smaller populations and less activity, where the creation of further marine reserves may prove less contentious, there are no marine reserves and none being proposed. Such areas include Stewart Island, the coastline from Invercargill to Christchurch, and around the East Cape.

Currently, there is only one marine reserve on the whole of the North Island’s west coast (Kapiti Island - 2176ha) and only one on the east coast of the South Island (Flea Bay - 215ha). Even in areas considered to be of national or international significance, there is a scarcity of marine reserves:

• Milford Sound – 1 marine reserve of 690ha
• Marlborough Sounds – 1 marine reserve of 619ha
• Able Tasman – 1 marine reserve of 1835ha
• Doubtful Sound – 1 marine reserve of 93ha

Strategic Approach Required

Of major concern to the opponents of marine reserves is the obvious intention of applicants to endorse areas that are of high recreational activity. The selection of proposed sites is usually based on land-based recreation practices, where areas of greatest use are normally purchased for the public to use and enjoy. However, this approach is not applicable to the marine area. The marine area is already in public ownership for all to use and enjoy. Creating a marine reserve has the effect of restricting the current use and enjoyment of these sites already freely accessible to the public, by placing restrictions on the activities that can occur within the reserve. The equivalent on land would be applying an Open Space 1 zoning to a recreational reserve that the public already enjoy and use.

The Hauraki Gulf is a prime example of this type of selection process. The Hauraki Gulf is the playground and economic lifeline for New Zealand’s largest city and caters to a wide variety of competing recreational and commercial interests. Yet the Gulf is also the focal point for the establishment of new marine reserves. The provision of additional marine reserves within the Gulf may further restrict commercial and recreational activities and may create further conflict between competing interests and activities.

It is therefore important that an integrated and strategic approach is taken to ensure an equitable and balanced approach is reached to the provision of marine reserves within the Hauraki Gulf. To date such a strategic approach has not occurred in the Gulf. However, a significant step towards a strategic planning approach for the Gulf has already been undertaken by the ARC in preparing the aquaculture variation to the Regional Plan: Coastal. The Regional Council mapped the majority of the existing constraints within the Gulf. Additional work would be required to identify constraints below the surface such as key spawning grounds and sites of marine ecological significance, seascapes and significant marine geological features etc.

The Northland Conservancy of DOC is currently in the process of preparing a strategic plan for the marine area of Northland. While the Auckland Conservancy of DOC has signalled their willingness to do likewise, they have indicated that such work is not an immediate priority.

It is recommended that the Committee support in principle the development of an overall plan for the marine area of the Hauraki Gulf. Council staff consider the Hauraki Gulf Forum would provide the best vehicle by which an integrated and strategic plan for the Hauraki Gulf could be developed. The Council should put a report to the Forum agenda outlining Auckland City’s support for a strategic plan for the Gulf and recommend that the Forum endorse such an approach and undertake the work required.

Prioritising the Council’s Support for Marine Reserve Proposals for the Gulf

If support for a strategic plan is not forthcoming from the Forum, Council still needs to determine the priority it gives to three proposals currently being put forward. Council staff have reviewed the current proposals and recommend the following priorities be given:

Great Barrier Marine Reserve – High Priority

The initial consultation for the Great Barrier Island marine reserve proposal began in 1991. Since then the Department has undertaken numerous site surveys and investigations to determine the diversity of the marine ecosystems and biodiversity along the north east coast of Great Barrier Island. While a formal application is yet to be lodged, this proposal is well along the statutory process for establishing a marine reserve.

The proposal will enhance the image of Great Barrier Island as an eco-tourism destination and supports Council’s initiatives to promote tourism and tourism opportunities within the Gulf as established through the ‘Vision Hauraki Gulf’ project. Key infrastructure already exists to cater for tourism associated with a marine reserve at this location.

The constraints mapping exercise undertaken by the ARC determined that the area proposed had few constraints. While a more detailed analysis is required to determine any actual constraints within the proposed area, it is anticipated that these would be less than those for a site closer to the urban metropolis and consequently would be less contentious.

It should also be noted that the majority of the northern end of Great Barrier Island is owned and managed by DOC. The only areas in private ownership affected by this proposal are a handful of landholdings either side of the Whangapoua Estuary and Beach.

For these reasons, Council should support the establishment of Great Barrier Island marine reserve.

Tiritiri Matangi Island Marine Reserve – Medium Priority

A draft proposal for the Tiritiri Matangi marine reserve was released for public discussion in December 2002. Like the Great Barrier Island proposal, significant work has been done in surveying the marine biology in this area.

Tiritiri Matangi Island itself is an open scientific reserve managed by DOC and is already an important location for scientific research. No privately owned land is affected by this proposal.

The majority of the coastline surrounding the Island is also scheduled as a ‘coastal protection area’ within the Regional Plan Coastal in recognition of the regionally significant geological platforms which surround the Island. A marine reserve at this location is proposed to support the existing use of the Island for wildlife protection and would provide new opportunities for marine research.

Tiritiri Matangi Island is already a key tourist attraction. The Island is accessible to the general public and a ferry service operates daily bringing visitors from Auckland and Gulf Harbour to the Island.

For the reasons stated, the Council should give medium priority to the establishment of a marine reserve at Tiritiri Matangi Island.

The Noises Marine Reserve – Low Priority

The recommendation to investigate the Noises as a marine reserve was made by the Strategy and Governance Committee in December 2002. This is a high recreational fishing area and initial consultation has indicated that any proposal for a marine reserve at this location would meet with stiff opposition by a wide variety of existing groups. While the owners of the Noises have initially supported a marine reserve, it is likely that they will come under significant pressure from oppositions groups to reverse their decision. Should this occur is would be very difficult for Council to proceed with this proposal without the owners support.

Substantial work is still required to determine the appropriate size of the marine reserve and its boundaries. To date, little consultation has been undertaken and survey work is yet to be carried out to assess the marine ecology and geology of the area. The waters surrounding the Noises are scheduled as a ‘Coastal Protection Area’ under the Regional Plan: Coastal. The reason for this status is that the islands support a diverse range of coastal and sea birds. The reef heron, a threatened endemic wading bird is commonly seen on the islands and Maria Island is one of the few breeding sites in the Region for the spotted shag and white-faced storm petrel. However, the conservation values of the islands have been degraded as a result of historical pest infestations by rats, rabbits, stoats and currently weeds.

Considering this proposal is still at the early stage of the statutory process, and there are limited grounds by which to support a marine reserve proposal until further work is completed, it is appropriate that Council assign a low priority to establishing the Noises as a marine reserve.

It is recommended that the Committee endorse the priorities given to the establishment of the three proposed marine reserves for the Hauraki Gulf.

Proposed Marine Reserve for Great Barrier Islands

The DOC proposed marine reserve for Great Barrier Island extends from Korotiti Bay to Needles Point in the far north, and from mean high water springs out to the 12 nautical mile limit of the territorial sea (approximately 53,000ha).

The questionnaire attached to the discussion document asks Council to comment on:

• whether the Council supports the principle of a marine reserve somewhere on the north-east coast of Great Barrier Islands;
• how the Great Barrier Island Community and Auckland City may benefit from a marine reserve on the north-east coast;
• if the Council thinks any part of the Whangapoua Estuary should be excluded from the marine reserve proposal and why;
• whether there are any particular areas on the north-east coast and offshore waters that the Council thinks should not be protected as a marine reserve and why; and
• any other comments the Council may have with regard to a marine reserve for Great Barrier Island.

With regard to the last question, the Council should consider:

• The direct benefits of this proposal on Great Barrier Island (including: increased tourism and tourism operators; the promotion of Great Barrier Island as a world class eco-tourism destination);
• The direct costs of this proposal on Great Barrier Island (including: impacts on recreational and commercial use; impacts on the residents ability at access the marine area; impacts on customary use; implications for public access; implications for existing structures and public works along the foreshore including discharges to the coastal marine area and adjacent management of land-use);
• Any alternatives to this proposal such as: changing the location, size, activities provided for within the reserve. (The proposed Marine Reserves Bill looks to expand the purpose for establishing a marine reserve and the activities and management that can occur within a reserves boundary);
• How this proposal will impact on the greater recreational use of the Hauraki Gulf given the existing marine reserves within the Gulf (Long Bay, Pollen Island, and Te Matuku Bay on Waiheke) and the proposed marine reserves for and the Noises; and
• How this proposal will impact on the Council’s proposal to establish a marine reserve for the Noises

It is recommended that a working party be established to consider and respond to these questions. The working party should be made up of two representatives from the Great Barrier Island Community Board, a representative from the Strategy and Governance Committee, a representative from the City Development Committee, and the Councillor for the Gulf Islands Ward.

A working party has been recommended to ensure that the Council provides a consistent and unified response to the Department’s proposal for a marine reserve for Great Barrier Island.

3.3 Options

1. That the Committee supports the development of an overall plan for the provision of marine reserves within the Hauraki Gulf Marine Park.

This option is recommended as it promotes an integrated and more equitable approach to the provision and prioritisation of marine reserves within the Gulf.

2. That the Committee continues to support or oppose marine reserve applications for the Gulf as they arise

This option is the status quo which is not ideal as it requires Council to assess merits and implications of each application. This can be both costly and time consuming and may not result in an equitable outcome where competing interests are concerned.

Prioritising the Council’s Support for Marine Reserve Proposals for the Gulf

1. That Committee endorses the priority given to the three proposed marine reserves for the Hauraki Gulf Marine Park

This option is recommended if support for an overall plan for the Gulf is not forthcoming from the Hauraki Gulf Forum. Assigning a priority to the marine reserve being proposed ensures Council focuses time and resources on those proposals that result in the greatest benefit to the residents of the district.

2. That the Committee not assign a priority rating to the marine reserve proposals.

This option is not considered appropriate as the Council has a key leadership role in the Gulf, which requires the Council to support those applications which will the greatest benefit to the district.

Great Barrier Island Marine Reserve Questionnaire

1. A working party be established to consider and respond to the DOC questionnaire and the matters raised in Section 3.2 of this report.

DOC’s marine reserve proposal for Great Barrier Island has already been reported to the Great Barrier Island Community Board and will also be reported to the Strategy and Governance Committee. The reports recommend a working party be established consisting of a representative from City Development and Strategy and Governance Committee’s, two members from the Great Barrier Island Community Board, and the Councillor for the Gulf Islands. This is the recommended option as it ensures the Council provides a consistent and unified response to Department’s proposal for a marine reserve for Great Barrier Island.

2. That the Great Barrier Island Community Board and the Committee’s put in separate responses to the marine reserve proposal and questionnaire.

This option is not considered appropriate as it may result in concerns being expressed that may be different or contradictory.

3. That Council Staff responds to the issues raised in the questionnaire and this report.

This option is not preferred, as many of the issues raised in this report, and in the questionnaire, require consideration of the issues and effects that are of a district wide nature and require political direction.

3.4 Budget Implications

Staff time and resource, as well as Community Board and Committee representative time, will have to be allocated to the working party and development of a response to the discussion paper. There will also be travel costs involved with getting the members of the working party together. Such time and resources has not been budgeted for in the 2002/03 budget and will need to be provided at the expense of other projects.

3.5 References

A marine Reserve for Great Barrier Island? – Your Chance to Have a Say. Department of Conservation, January 2003.

Name and title of signatories:
Author Matthew Paterson: Planner Isthmus and Islands Resource Management
Reviewer Karen Bell: Manager Isthmus and Islands Resource Management, John Duthie: Manager City Planning
Approver Jill McPherson: Director Planning Services
Note: There are no appendix items attached to this report on the option4 site