Summary

In 2002, we conducted an inquiry into administration of the Conservation Services Programme by the Department of Conservation (DOC).

The Conservation Services Programme is a research programme within DOC’s Marine Conservation Unit. The Programme’s objectives are to understand the nature and extent of adverse effects from commercial fishing activities on protected species in New Zealand fisheries waters, and to develop effective solutions to mitigate those adverse effects.

Funding for some of the Programme is collected from the fishing industry via a levy (the Conservation Services Levy).

The report from our 2002 inquiry made a number of recommendations for improvement. This report follows up on the progress made in implementing our recommendations.

Overall, DOC and the Ministry of Fisheries have implemented the majority of our recommendations, with much progress occurring since late-2003. Some work remains to be carried out before all our recommendations are implemented in full.

Justification for funding research as a conservation service

DOC has made progress in justifying the relationship between a research project, the effect of commercial fishing on the particular protected species, and the associated levy.

DOC has also made progress in demonstrating to stakeholders how the cost recovery framework has been applied to proposed research projects, including the rationale for the apportionment of costs to industry.

In addition, DOC is funding the research that it believes will prove that commercial fishing is having an adverse effect on the black petrel. Without that link having been established, it is appropriate, in our view, for the Crown to fund this research (rather than the commercial fishing industry).

In line with our recommendations in 2002, DOC is providing assurance to the Minister of Fisheries that proposed projects are “conservation services” for the purposes of the Fisheries Act 1996.

Application of the cost recovery rules

DOC has commissioned work to improve the methodology for estimating risk to protected species populations from human activities. However, the New Zealand Seafood Industry Council Limited has concerns regarding the process used to develop this work, and its efficacy.

In our view, more work is required by DOC, in consultation with interested parties, before there can be a real improvement in the methodology for estimating risk to protected species populations from human activities.

In our view, DOC is now taking effective steps to implement a population management plan for the New Zealand sea lion.

DOC has attempted to improve procedures to resolve disputes about risk estimation and assessment of cost recovery, and is relying upon its consultation process to identify concerns at an early stage.

Consulting on the annual plan

In line with our recommendations in 2002, DOC invites interested parties to make written submissions on the Conservation Services Programme’s draft annual plan and circulates those submissions before the consultation meeting. DOC also provides a timetable to convey which documents will be circulated and when this will occur.

Information on under- and over-recovery of costs

DOC and the Ministry of Fisheries have improved their exchange of information for the management of the Conservation Services Levy.

The Ministry of Fisheries is providing more detailed, accurate, and timely information on the delivery of observer days.

DOC and the Ministry of Fisheries have put in place procedures for providing the financial information necessary for the Minister to meet his statutory obligations under the Fisheries Act 1996.

Management of the observer programme

The Conservation Services Programme’s Annual Report 2003-04 provides information on the observer coverage for that year, including information on the days levied and the days actually used. This more transparent approach is in line with our recommendations in 2002.

DOC and the Ministry of Fisheries are working more closely together to ensure that the observer programme runs smoothly, and are taking steps to ensure that the number of agreed observer days take place.

A strategic plan for the Conservation Services Programme

DOC is preparing, in consultation with interested parties, a draft strategic plan for 2005-10. Most of the elements that we recommended be in a strategic plan have been included.

Accountability for the Conservation Services Programme

DOC has taken steps to improve the level of accountability for the Conservation Services Programme. For the first time, DOC is proposing to indicate, 5 years in advance, the nature and extent of its research intentions.

In our view, DOC could further improve accountability by accurately assessing and documenting the term of a project, so that the overall resource implications are known from the outset.

If multi-year projects occur, we expect DOC to report on the costs incurred and the progress made against the objectives.

Implementing the results of research

Some initiatives have been implemented to help commercial fishers to reduce the potential adverse effects of commercial fishing. We understand other initiatives are pending.

DOC is taking steps to ensure that its planning documents for the Conservation Services Programme support research findings being translated into improved fishing practices.

DOC is preparing a number of planning documents and a framework designed to guide and inform the priority projects for the Conservation Services Programme. These documents are being developed in consultation with interested parties.

It is too early to determine if these initiatives provide a more transparent process for considering whether research findings indicate a need for change in the direction and content of the Conservation Services Programme.