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Introducing Fiordland

Fiordland, a place of wonder

Those privileged enough to spend time in Fiordland find a place beyond superlatives – the landscape is simply stunning. From dramatic peaks, sheer rock faces drop into steep forested slopes whose cloak descends right to the water’s edge. With rainfall exceeding seven metres a year in places, thundering waterfalls and cascades appear at every turn. This is a place of many moods – wind can whip the sea’s surface into a froth of funnels and swirls, but when the day is calm, mirrored reflections are nothing short of magic.

And the magic does not stop at the water’s surface. Beneath the reflections of the fiords, something unusual is happening. Fresh water soaking down through the carpeted forest floor absorbs tannins, which stain it the colour of tea. On reaching the saltwater, the less dense fresh water floats on the surface, forming a tea-stained light-blocking layer. Kelps, normally the basis of marine communities, cannot grow the rocks. in the light-poor conditions, and are replaced by animals which normally inhabit greater, darker depths.

At the fiord entrances and along the outer coast, conditions are very different, and much more dynamic. Here kelps flourish in the turbulent water, fostering productive marine communities where rock lobster (koura) teem and paua graze the rocks. Such profound difference between the inner fiord environment and the entrances and open coast has fundamental implications for the fish communities.

Alongside Fiordland’s fish communities live some of its special inhabitants – bottlenose dolphins, New Zealand fur seals (kekeno), Fiordland crested penguins (tawaki), and blue penguins (korora). On a lucky day, you may even see whales, which swim by where the continental shelf comes close to the coast.

The push for protection

Harvesting fish has been one of the main activities in Fiordland ever since humans began to visit. It was always assumed that Fiordland’s isolation and harsh weather conditions would help keep its fish stocks at healthy levels.

But, in the late 1980s, declines in blue cod (rawaru) and rock lobster numbers within the more easily accessible Milford/Piopiotahi and Doubtful/Patea Sounds began to cause concern. As vessels became larger and more powerful, and the use of floatplanes and helicopters became more common, access improved markedly to all the fiords. Fears grew that the depletion of popular fish stocks that had already occurred in the two most accessible fiords was now spreading to other parts of Fiordland.

Fiordland’s commercial fishers were at the forefront of the first marine protection initiatives in the 1980s and 1990s. Their extended periods of time on the water had developed a deep and personal appreciation of the fiords, and they were keen to see two very special areas protected. As a result, the Fiordland Fishermen’s Association, through its parent body the New Zealand Federation of Commercial Fishermen, applied for marine reserve status and, in 1993, two reserves were established – Piopiotahi (Milford Sound) Marine Reserve and Te Awaatu Channel (The Gut) Marine Reserve. This marked the beginning of a challenging and productive journey.

How the Fiordland Marine Area was established

The Guardians of Fiordland’s Fisheries

In 1995, when a suggestion was made that all fishing interests might get together and work on ways of looking after the fish stocks and fisheries of Fiordland, the response was overwhelmingly positive.

The Guardians of Fiordland’s Fisheries was formed, and looked to the Ministry of Fisheries for advice and facilitation. Members included representatives from the Oraka Aparima Runaka Inc of Ngai Tahu iwi, commercial fishers, recreational fishers, and charter boat operators.

At the first meeting, the Guardians adopted the following vision:

For the next five years, members of the group shared their knowledge and collected information about all aspects of Fiordland’s fisheries. This was documented in the 1999 report Beneath the Reflections. A Characterisation of Fiordland’s Fisheries. The Guardians appreciated that local knowledge was invaluable for identifying issues and developing solutions. And that in such a challenging and isolated environment, solutions needed to be both feasible and practical.

An integrated approach to the Fiordland marine environment

During this period it became clear that the focus on fisheries needed to be expanded to a more holistic approach encompassing every aspect of the marine environment. For instance, the invasion of marine pests has serious implications for fisheries and for all other parts of what is a complex ecological unit. To reflect this broader focus, the Guardians became known as the Guardians of Fiordland’s Fisheries and Marine Environment.

To allow the whole Fiordland marine environment to be considered, and for a unified approach to succeed, all the agencies responsible for the various components of the environment in the area needed to become involved. The Guardians canvassed those agencies for support and, in 2000, the group received a grant from the Ministry for the Environment to develop an integrated strategy for Fiordland’s fisheries and marine environment. This resulted in representatives from marine science and environmental interests joining the Guardians, and the Department of Conservation, Environment Southland and the Ministry for the Environment joining the agency advisory and support group.

Developing the Fiordland Marine Conservation Strategy

To begin, the Guardians brainstormed the issues that could impact on the health of fisheries and the marine environment. These were grouped into fisheries issues, values of special significance, and risks to the marine environment. The group also considered how kaitiakitanga (stewardship) could be appropriately expressed in Fiordland.

Developing the draft conservation strategy in only two years required a very significant commitment. For a number of issues such as risks to the marine environment, the group agreed about what was needed. However, when one interest or sector benefited at the cost of another, the Guardians agreed that the advantaged party should give something in return. The aim was to ensure that the greater good of Fiordland took precedence over competing interests. This became known as the ‘gifts and gains’ philosophy that underpinned more difficult negotiations.

For instance, when the commercial fishers volunteered to withdraw from fishing the inner fiords, recreational fishers volunteered to set stringent fishing rules for these more fragile inner areas. Representative areas that were biologically diverse were identified as deserving particular care. Other more discrete and fragile areas were identified as having special qualities and became known as ‘china shops’. Some of these areas were deemed to be vulnerable to anchoring damage and were therefore designated no-anchoring areas. (See ‘Protected areas’ section and the ‘Fiord-by-fiord’ section for more information on areas where fishing and anchoring is restricted). For the strategy to succeed in an isolated area such as Fiordland, it was imperative that all stakeholders supported both the process and the philosophy that underpinned it.

From strategy to reality

The draft conservation strategy was launched for consultation in 2002. In 2003, the final Fiordland Marine Conservation Strategy was presented to the Minister for the Environment, the Hon Marian Hobbs, and the Minister of Fisheries, the Hon Pete Hodgson. They made a commitment that the strategy would be implemented in its entirety within two years, an extremely short timeframe. Some measures could be implemented by voluntary agreements and some by existing legislative measures, while others required new legislation. For instance, marine invasion measures came in as a package handled by MAF Biosecurity New Zealand; fisheries measures came into force under the Fisheries Act 1996; and eight new marine reserves were introduced with the passing of the Fiordland (Te Moana o Atawhenua) Marine Management Act 2005. ‘Te Moana o Atawhenua’ refers to the shadows of the land reflecting onto the waters of the fiords.

Managing the Fiordland (Te Moana o Atawhenua) Marine Area

The Fiordland (Te Moana o Atawhenua) Marine Management Act 2005 recognises the local, national and international importance of the Fiordland (Te Moana o Atawhenua) Marine Area. The area extends from Awarua Point on the West Coast to Sandhill Point, Te Waewae Bay, and to 12 nautical miles of the Fiordland coast.

A major feature of the Act is the formal recognition of the Fiordland Marine Guardians (the Guardians) who are appointed by the Minister for the Environment. The Act also identifies the Ministry for the Environment, the Department of Conservation, MAF Biosecurity New Zealand, the Ministry of Fisheries and Environment Southland as the management agencies. It was clear that successfully implementing such a varied package would involve the management agencies and the Guardians working closely together. To ensure this, the Guardians have been given the critical role of facilitating and promoting integrated management. Other tasks include providing advice and making recommendations on the effectiveness of management measures; assessing impacts of activities near the area and any likely threats to the area; obtaining and sharing information; and assisting in monitoring the state of the marine environment and biological diversity.

For a community, this level of input to managing a precious resource reflects the advantage of a ‘bottom-up’ approach, where those on the ground are able to make a very significant contribution. And real progress has been made towards realising the original Guardians of Fiordland’s Fisheries’ vision, which is as relevant today as it was when adopted in 1995.

Kaitiakitanga

Kaitiakitanga is an important part of the management of the Fiordland (Te Moana o Atawhenua) Marine Area. Oraka Aparima Runaka Inc is the mandated iwi kaitiaki for the Fiordland area, as set out in the first schedule of Te Runanga o Ngai Tahu Act 1996.

The ethic of kaitiakitanga refers to the decision-making authority over a particular resource or resources within the rohe (tribal area) of an iwi (tribe) or hapu (subtribe). People are designated by iwi/hapu to look after specific resources, a responsibility mandated by the tangata whenua (local people) who have mana whenua (territorial rights) over the area. These people are known as kaitiaki, and are considered the custodians of the resources and regulators on behalf of the whanau (family), hapu and iwi.

Kaitiaki use a system of rules or prohibitions which are based on the spiritual concepts of tapu and rahui. Tapu implies a prohibition or restriction in which no person is exempt. Any transgression is to bring about the wrath of the gods. Rahui is seen as a temporary restriction and a conservation measure to protect a resource or resources.

With European settlement came the alienation of Maori, resulting in iwi and hapu having diminished authority over many of the resources for which they were once responsible as tangata whenua and kaitiaki. Despite this situation, the traditional sense of duty and responsibility that Maori have toward their natural resources is still retained.

It is this sense of duty and responsibility in kaitiakitanga, and their resolve that their mana whenua and rangatiratanga (self-determination) were never lost in the alienation of their lands, that have led the iwi/hapu to seek to establish working partnerships with the Crown and Crown agencies, non-governmental organisations and other users to assist with the custodianship of the natural resources.

Therefore all of those persons who have taken on management responsibilities in any form or manner would be seen to be working within the concepts of kaitiakitanga/stewardship/ custodianship.

Welcome aboard.

 

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