Final Technical Reportacpfish2-eu.org/uploads/projects/id215/Final Technical...Banner c. Poster d. Newspaper e. Photos List of Acronyms ACP Fish II African Caribbean Pacific Fish II

"Strengthening Fisheries Management in ACP Countries"

Project Funded by the European Union.

“This publication has been produced with the assistance of the European Union. The contents of this publication are the sole responsibility of Jo Akroyd on behalf of Landell Mills and can in no way be

taken to reflect the views of the European Union.” “The content of this document does not necessarily reflect the views of the concerned governments.”

Final Technical Report

Technical Assistance to Review and Update Fisheries Information to Formulate Fisheries Management Plans for the

Cook Islands

Project ref N° PAC-1.2-B3b

Region: Pacific Country: Cook Islands

October 2013

Assignment by:

Fisheries Management in Cook Islands

Project Funded by the European Union A project implemented by Landell Mills pg. 2

Technical Assistance to Review and Update Fisheries Information to

Formulate Fisheries Management Plans for the Cook Islands

Project ref. N° PAC-1.2-B3b

Name of individual consultant

Jo Akroyd

Contents amendment record

This report has been issued and amended as follows:

Revision Description Date Signed

1

Report October 2013

Designed and produced at Landell Mills Ltd

Task Management and quality assurance by Patrick Lee

This report has been prepared with the financial support of the European Union. The contents of

this publication are the sole responsibility of Landell Mills and can in no way be taken to reflect

the views of the European Union.



Contents

LIST OF ANNEXES .............................................................................................................................. 4

LIST OF ACRONYMS .......................................................................................................................... 4

ACKNOWLEDGEMENTS .................................................................................................................... 5

EXECUTIVE SUMMARY ................................................................................................................... 6

1.1 SHORT BACKGROUND ........................................................................................................... 9

1.2 COMMENTS ON TERMS OF REFERENCE ...................................................................... 10

1.3 APPROACH TO THE ASSIGNMENT .................................................................................. 11

1.4 ORGANISATION AND METHODOLOGY .......................................................................... 13

1.4.1 Delivery of Terms of Reference .......................................................................... 13 1.4.2 Conduct and details of the assignment including visibility activities ............. 15

1.5 CONCLUSIONS AND RECOMMENDATIONS ................................................................. 15

1.6 RECOMMENDATIONS ........................................................................................................... 17



List of Annexes

1. Terms of Reference

2. Inception Report

3. Consultation Report

4. Individuals consulted

5. List of reports and documents consulted

6. Technical outputs

a. Presentations, trochus, sea cucumber and coastal fisheries

b. Records of meetings

c. Management Plan trochus

d. Management regulations trochus

e. Draft management Plan Sea cucumber

f. Draft regulations Sea Cucumber

g. Proposed framework national coastal fisheries plan

7. Visibility Strategy

a. T-shirts

b. Banner

c. Poster

d. Newspaper

e. Photos

List of Acronyms

ACP Fish II African Caribbean Pacific Fish II

CI Cook Islands

CU Coordination unit, Brussels

EU European Union

FFA Forum Fisheries Agency

FR Final report

FRT Final technical report

LML Landell Mills Limited

MMR Ministry of Marine Resources

PS Permanent Secretary MMR Cook Islands

RFU Regional facilitation unit

SPC Secretariat of the Pacific Community

TT Technical team



Acknowledgements

The consultant wishes to thank the Ministry of Marine Resources (MMR) in

Rarotonga for their participation, commitment and support for this project, especially

the Secretary of Marine Resources, Ben Ponia and the Project’s Technical Team

Members Korea Raumea, Sonny Tatuava and Dorothy Solomona. The consultant

would also like to thank the six Island Council Mayors, and councillors, as well as the

local MMR Fisheries Officers for their organisation for the workshops and their

hospitality. More than 300 Cook Islanders were involved in the workshops and

deserve special thanks and appreciation for their contributions. The cooperation and

collaboration of scientists from the SPC was very useful to ensure that this project

dovetailed into longer term work of this agency. The assistance of ACP Fish II staff,

especially the Regional Coordinator for the Pacific is gratefully acknowledged.



Executive Summary

The nature of fisheries in the Cook Islands is heterogeneous and contains a wealth of

species caught using a range of gear types, operating at different levels of scale.

Fishing activities in the Cook Islands are classified into three main categories;

subsistence; artisanal; commercial. Subsistence fishing comprises 55 per cent of the

fishing activity in terms of the number of people involved. Artisanal fishing (whereby

the harvest is sold for income at local markets, restaurants and hotels) makes up 35

per cent of the total fishery sector. Commercial and industrial fishing make up the

remaining 10 per cent (MMR information).

The main focus of the fisheries sector has been on commercial fishing development,

which includes tuna fishing by foreign fleets with access licenses from countries and

territories such as Korea, Taiwan, French Polynesia and American Samoa. This

provides important revenue for the Cook Islands.

The Ministry of Marine Resources is refocusing to place more emphasis on inshore

coastal fisheries which are so important to the local Cook Islands communities.

This project provided an opportunity for Cook Islanders to be involved in the future

management of coastal fisheries. Consultations on trochus, sea cucumber and

coastal fisheries1 took place on six islands (four in the northern group - Pukapuka,

Manihiki, Rakahana and Penryhn and two in the southern group - Aitutaki and

Mangaia). There was wide support for management plans and regulations for sea

cucumber and trochus and a great deal of interest in developing a coastal fisheries

policy. Important species were identified and methods for fishing. All these have been

recorded in Maori – the most commonly used language in particularly the northern

Cook Islands.

The ACP Fish II Programme “Strengthening Fisheries Management in ACP

Countries” has an overall objective to contribute to the sustainable and equitable

management of fisheries in ACP regions, thus leading to poverty alleviation and

improving food security in ACP States. ACP Fish II provided funding and support to

this project “technical assistance to review and update fisheries information to

formulate fisheries management plans for the Cook Islands”. The project was initially

to hold Cook Island wide consultations on Fisheries Plans for trochus and sea

cucumber, however following the Inception meeting it was agreed to expand the

purpose to include consultation on a national Coastal Fisheries plan

1 Coastal Fisheries were not originally part the ToR. However, after inception it was clear that considering

coastal fisheries under the project was an important and demand driven initiative. See Inception Report for further details.



Landell Mills were contracted to undertake activities to produce the following as

deliverables to the Ministry of Marine Resources in the Cook Islands.

Enhanced awareness on pertinent issues related to the management of

trochus sea cucumbers and costal fisheries and other inshore fisheries within

the Cook Islands;

General information on trochus and sea cucumbers reviewed, updated and

available for the Cook Islands;

Consultation of local communities and Island Councils in the outer islands

carried out on sea cucumbers, trochus and other inshore fisheries

Revised Trochus Fisheries Management Plan (FMP) drafted and draft

template Sea Cucumber Fishery Management Plan (FMP) produced;

Comments and conclusions of consultative meetings thoroughly documented.

This report provides an overview of the approach to the assignment, the consultation

process, progress with fisheries plans for sea cucumber and trochus and a

framework for a coastal fisheries policy2.

Several conclusions were forthcoming for the project:

The project provided an excellent opportunity for consultations in the Outer

islands of the Cook Islands. The degree of participation and consultation in the

past has been limited and it has necessary to show ‘best-practice’ in how to

consultant resource users themselves. In addition, the distance of some of

these Islands from Rarotonga and the cost of travelling makes it difficult for

frequent and regular consultations by Fisheries Officers. MMR staff is

stationed in these islands but a visit by key and senior MMR staff was

welcomed.

There is a considerable amount of information of fisheries resources known by

local communities (indigenous technical knowledge) but in some cases there

is limited information on stock status and biology (scientific technical

knowledge). The opportunity to explore and develop some of the fisheries,

through increased knowledge of the fishery, could support these communities

economically.

2 As a result of the added coastal fisheries an additional output of the project included developing a

frameworks for coastal fisheries policy to help the process of developing a more extensive coastal fisheries policy be developed.



MMR have put a considerable amount of effort into the plans and regulations for both

trochus and sea cucumber fisheries (i.e. it was not a blank canvas) and importantly

the emphasis for this project was on consultation (as mentioned above). The Island

Councils and communities have not been involved in the process to develop these

Fisheries Plans and welcomed the opportunity to be consulted. Therefore, there is a

need to support (financially) and build on (institutional strengthening) of current

capabilities. A different format approach from MMR’s aquaculture development plan

and offshore policy has been adopted in that these plans and the coastal policy have

more of a grassroots “voice from the village” tone. It is very broad brush and this is

appropriate as the sector is poorly defined and there are various formal and informal

structures that operate

The management plans will require legal assistance in promulgating them as

regulations and aligning them to the new Island Government Act 2013 which enables

MMR and the local island government to enter into a management partnership.

Cook Island Maori is the language used particularly in the northern group. It is

important the future management plans and policy are written in both English and

Maori.

The recommendations are:

That the draft fisheries management plans for trochus and sea cucumber be

finalized and sent to Crown Law for their review. When the drafts are

accepted, Cabinet and Executive Council Submissions are prepared and the

management plans are adopted.

The Coastal Fisheries Policy needs to be completed and the framework for

coastal fisheries policy acts as a starting guide to completing this process.

The coastal fisheries policy should guide the sea cucumber and trochus

management plans and indeed any coastal fisheries regulations.

Cook Islands should receive further assistance to translate the Management

Plans and Policy into Maori and to implement the management plans and

coastal policy. The inclusion of the Maori language is important.



Technical Assistance to Review and Update Fisheries Information to

Formulate Fisheries Management Plans for the Cook Islands

1.1 Short Background

The development and management of marine resources within the Cook Islands falls

under the jurisdiction of the Ministry of Marine Resources (MMR). MMR works under

the Ministry of Marine Resources Act (2005) which establishes a comprehensive

framework for fisheries management.

Of particular relevance to this project, the Marine Resources Act (2005) requires that

where a designated fishery is declared in the Cook Islands, the Act requires the

preparation of a fishery management plan that identifies the fishery, describes its

status, specifies management measures that should be applied and the process of

allocation of fishing rights, as well as making provision for any other matters that may

be necessary to ensure that the fishery is used sustainably. The Act also authorises

the preparation of a fishery management plan for a designated fishery of local

interest by a local authority in consultation with the principle marine authority in the

Cook Islands, MMR.

According to MMR, living marine resources are regarded as common property in the

Cook Islands. No individual has exclusive rights over them, and anyone in the

community has a right to harvest these resources. Management of the marine

environment has been practised in the Cook Islands since the ancestors of the

present Polynesian populations inhabited these islands. It has been important

because of the small areas and limited resources available.

Today, although the large majority of islands have plentiful supplies of most of their

marine resources, there are some species that need to be managed to prevent

population declines. Management is becoming even more important because of the

economic, technological and environmental changes occurring as well as changes in

the traditional use of marine resources. Income from fisheries is becoming

increasingly important, as people have come to rely on cash for purchasing imported

foods and goods.

More efficient fishing gear (such as gill nets) means that more fish can be caught in

less time; and with storing facilities such as freezers, a surplus of fish can be had.

Increased capacity for management of fisheries resources (the purpose of this timely

project) is at a critical point in the Cook islands and the institutional environment

behind fisheries management will play a critical role in the future of fisheries

development.



Inshore/near shore fishing is carried out for mainly subsistence purposes – except in

those places where there are stronger access to markets (i.e. Rarotonga and to a

lesser extent, Aitutaki) or relatively easy access to those markets (e.g. Palmerston).

Fishing is mostly conducted from small outboard-powered craft and canoes in the

lagoons and along the outer reef edge. There are also important small-scale fisheries

that occur further offshore; fishing for tuna around fish aggregation devices (FADs)

and fishing for flying fish at night using lights and dip-nets. Over concerns of a

potential depletion of these vital coastal fisheries there has been an increased in

interest in exploiting sedentary and slow moving marine animals to diversity target

specifies in the inshore/near shore subsector. The Cook Islands have an offshore

policy and an Aquaculture development Plan however there is no Coastal Fisheries

Policy. The permanent secretary has the development of a coastal fisheries policy as

a high priority

As interest in exploiting sedentary and slow moving marine animals increases there

is a pressing need to formalize fisheries management for both the trochus and sea

cumber. There are examples of management regimes for both in place (with varying

degrees of formality), but this is not across all island, at all levels and more

awareness and information is needed to draft a revised Trochus FMP and a draft Sea

Cucumber FMP to ensure extraction is sustainable and equitable and good

management decisions are made.

1.2 Comments on Terms of Reference

The purpose of this contract was to provide technical assistance to the Pacific ACP

State of the Cook Islands to develop its National Fisheries Management Plans for

trochus and sea cucumber taking into consideration the recent national, regional and

international requirements and international best practices3.

MMR have already put a considerable amount of effort into the plans and regulations

for both fisheries so the emphasis for this project was on consultation and then to

take information from these into account when finalising the plans. The Island

Councils and communities had not been involved in the process to develop these

draft Fisheries Plans.

In Aitutaki, the Island Council, with the technical support of MMR, has introduced a

system of management for trochus that includes a very limited harvesting season

(generally less than one week per year), size limits (only shell between 80 and 110

mm), a quota on the overall catch (revised from year to year depending on the

assessed population size, and based on a yearly take of 30% of the assessed

3 See Annex 1 for full ToR.



population of shells within the size limits), a permanent reserve (at the site of original

introduction) and, latterly, a system of individual transferable quotas (allocated each

year to every household on the island.

Although trochus have been introduced from Aitutaki to most of the other Cook

Islands, reasonable populations currently exist only in Rarotonga and Penryhn. On

none of the islands visited was there particular interest in developing trochus at this

time. However there was consensus that a national plan and regulations would

provide a framework for management that could be adapted to include management

arrangements such as for Aitutaki but specific for each island.

There are both subsistence and small (Rarotonga only) commercial fisheries for sea

cucumbers in Cook Islands. As other pacific islands sea cucumber resources have

been over fished there has been interest in exploiting sea cucumbers in the Cook

Islands. It is timely for a Sea cucumber Management Plan and regulations to be

introduced into the Cook Islands. At all island meetings there was support for

sustainable management of sec cucumber and requests for stock status surveys to

be carried out before any exploitation was granted.

The Permanent Secretary also advised that his priority was for a Coastal Fisheries

Policy and suggested that it might be possible to collect information and consult on

inshore fisheries on the six islands. The EU ACP Fish II Fish representative and the

Fisheries Management Advisor for this project agreed that this would enhance the

project and be of benefit to the Cook Islands

The most effective way fisheries management plans can work is for their

development to be through a participatory approach based on consultation and

consensus with a range of stakeholders.

1.3 Approach to the assignment

The primary purpose of this assignment was to assist the MMR in the Cook Islands in

consultations on national fisheries management plans for the trochus and sea

cucumber fisheries and to consult on the development of a national coastal fisheries

management plan. The assignment was completed in one mission with broad

stakeholder consultations on six outer islands. The output will contribute directly to

the preparation of the fisheries management plans and coastal fisheries policy.

These plans will take into account international best practices and the variables

across each of the islands.

A technical team (TT) was established at the onset of the assignment, which

comprised the consultant and senior MMR officers with relevant expertise in coastal

fisheries including trochus, sea cucumber, fisheries stock, and research in the Cook



Islands. The MMR Secretary came to all island meetings, showing MMR’s

commitment (and heavy involvement in the project) to involving all the communities in

coastal fisheries management issues.

The consultant worked closely with the TT to ensure a consensus and group

approach on the work plan, tasks, roles and responsibilities, reporting arrangements,

and the all details MMR assisted with arrangements for island visits including

contacting Island Councils and arranging dates and venues.

Contact was made and advice sought from the Coastal Fisheries Division of the

Secretariat of the Pacific Community (SPC) concerning this assignment. Regional

resources were accessed and experiences related to trochus and sea cucumber

shared.

The assignment started with the consolidation, review and analysis of available

information4. Collection and review of relevant background and scientific documents

available was carried out and there was liaising with relevant institutions ( in

particular SPC and FFA) operating in the region building on past works on trochus

and sea cucumber fisheries in Cook Islands and a review and analysis of information

with Marine Resource Ministry, fisheries research institutes and other relevant

government agencies (e.g. National Environmental Service, the fishing industry, the

FFA (fisheries policies and legislation), SPC (fisheries management plans), fishing

communities and NGOs for development etc. also occurred.

After a review and analysis used to frame the project activities, the consultant, with

the assistance of the designated MMR staff, coordinated and convened island

consultations.

The extent of the Outer island (northern/southern) consultations was agreed upon by

the MMR Secretary and the TT. Due to budget constraints, it was agreed with MMR

that six islands would initially be visited. The islands to be visited were selected by

the consultant, the TT and MMR at the inception meeting. The use of the budget for

consultations was sought the RU. Physical distances between islands, logistics, and

the high cost of internal travel made broad stakeholder consultation challenging. For

the northern group a plane was chartered as were vessels to travel between islands

(Manhiki and Rakahana) and between villages on the other islands. For the southern

group commercial flights were used. There was one consultation workshop for the

islands of Pukapuka, Rakahana, and Mangaia and two consultation workshops on

Manihiki, Penryhn and Aitutaki islands. Two consultations were necessary because

of the distance between villages. A total of more than 300 Cook Islanders attended

these workshops5.

4 See Annex 5

5 See Annex 2



Another Island, Atiu in the southern group is to be visited by MMR staff in a time that

is suitable to the island council. It was agreed that this island was important for

coastal fisheries, trochus and sea cucumber but it was not suitable for a visit during

the consultant’s time on the island.

The process behind consultation followed local practice and procedure - invitations

were sent to the Mayors of each of the six islands in advance and gratefully

accepted. Participation at each of the workshop consultations ranged across a broad

spectrum of the island communities. The Mayor and Island councillors and local

MMR staff ensured that all had an opportunity to participate in the consultation

workshops.

Workshops included presentations on trochus, sea cucumber and coastal fisheries6.

Feedback was invited on these and records made7. The information collected during

the consultation process was documented and sent back to the island councils for

their verification. There were translations required to ensure all information was

correctly understood and available to all.

Based on all the information collected during the consultation process, the consultant

in consultation with TT and MMR reviewed the draft revised Trochus FMP8 and the

draft template of the Sea Cucumber FMP9 and prepared a framework for the national

coastal fisheries policy10.

1.4 Organisation and Methodology

1.4.1 Delivery of Terms of Reference (table as below)

TERMS OF REFERENCE DELIVERY

1 Briefing by the ACP Fish II programme and Fisheries Department

This was achieved through a series of meetings with the Permanent Secretary Ministry of Marine Resources, the TT, key personnel and the Regional ACPII Fish coordinator.

2 Set up a TT, collect, review and analysis of available data, information & documentation

MMR appointed two of their Senior staff to the technical team. A further staff member also accompanied the field visits to assist with record taking when discussions were in Maori.

3 Inception Report preparation This was completed on time including

6 See Annex 6a

7 See Annex 6b

8 See Annex 6e &6f

9 See Annex 6c &6d

10 See Annex 6g



including timeline and work schedule

timeline and work schedule.

4 Review existing Trochus FMP and prepare outlines of a draft template for the Sea Cucumber FMP

With technical team and legal advisor the existing draft plans for trochus and sea cucumber and the associated regulations have been reviewed.

5 Coordinate and organise all aspects of stakeholder consultations and conduct consultations

With the TT and MMR staff on the various islands, workshops were arranged. Consultations were held on six Islands, four in the North (Pukapuka, Manihiki, Rakahanga and Penryhn) and two in the South (Mangaia and Aitutaki). On two of the islands workshops were held in two separate villages (Tukao and Tauhuna in Manihiki and Tetautua and Omoka in Penryhn). In each location meetings were also held with the Mayor and Island Council. A total of more than 300 Cook Islanders attended these workshops

6 Document and edit all consultation outcomes and discussions and prepare brief close off assignment report

Records of all meetings were documented and sent back to the Island Councils. The consultations on sea cucumber and trochus are taken into account in the final Management Plans. The Coastal fisheries policy discussions are to be included in the Coastal Fisheries Policy for the Cook Islands. The results and conclusions of the workshop consultations is included in the consultation report.

7 Produce a revised draft Trochus FMP and a template for the Sea cucumber FMP for MMR Cook Islands to progress

The national sea cucumber and trochus plans are attached as annexes. Provided the communities are satisfied with the Regulations, and there are no further amendments from the stakeholders and Marine Resources - then they can be forwarded to Crown Law for their review. If the drafts are accepted, a Cabinet and Executive Council Submissions would be prepared.

8 Prepare Final Technical Report and Final Report

Will follow draft technical report



1.4.2 Conduct and details of the assignment including visibility activities

The assignment was carried out using the approach as outlined above. Critical to

achieving the desired results was the commitment and dedication of the MMR

Secretary and MMR inshore staff and the ability of the consultant to build

relationships with these key players.

The direct target group for this assignment is the Cook Islands Ministry of Marine

Resources. However, fisheries management aims to benefit the fishers and

communities that fish the resource, as well as the overall economy of the country.

Fisheries offer considerable potential to empower island communities through

creating livelihoods and income-earning opportunities.

Raising awareness on pertinent issues related to the management of trochus and

sea cucumber and coastal fisheries in the Cook Islands, was key to our approach.

The project received high visibility in the Cook Islands and at all times recognition

was given to the the objectives of the ACPII Fish programme and the EU funding

provided to implement this project in the Cook Islands. In particular there was

Regular press releases to the Cook Islands news and Cook islands herald, TV

interview with the consultant aired on national Cook Islands prime time news, T-

shits, posters, banners with ACP, EU MMR and Landell Mills logos clearly visible,

Presentations with ACP, EU MMR and Landell Mills logos, Photographs taken at all

meetings, Introductions and thank you from the Secretary MMR at each consultation

workshop.11

1.5 Conclusions and recommendations

The objectives and results as identified in the Terms of reference have been

achieved.

Critical to achieving the desired results was the commitment and dedication of the

MMR Secretary and MMR inshore staff and the ability of the consultant to build

relationships with these key players.

The workshops on all the six chosen islands were conducted in a participatory

manner with an inclusive and consultative approach: A key element was to foster

local ownership.

The tasks as set out in TOR provided the necessary information for the input into

management plans and coastal policy and the participatory approach taken

11

See Annex 7



throughout should result in an on-going effort to implement improved fishery

monitoring and management arrangements. The outer islands communities were

very appreciative of the projects efforts - one indicator of this success was the

willingness of communities to fully participate and share their ideas at the workshops.

For the project to have significant longer-term impact, the momentum gained during

the assignment needs to be maintained. MMR have shown that this is their clear

intention.

Key conclusions included:

The project provided an excellent opportunity for consultations in the Outer

islands of the Cook Islands. The distance of some of these Islands from

Rarotonga and the cost of travelling makes it difficult for frequent and regular

consultations. MMR staff are stationed in these islands but a visit by key and

senior MMR staff was welcomed.

There is a considerable amount of information on fisheries resources known

by local communities but in some cases there is limited information on stock

status and biology. The opportunity to explore and develop some of the

fisheries that could support these communities economically is needed.

MMR have put a considerable amount of effort into the plans and regulations

for both trochus and sea cucumber fisheries and importantly the emphasis for

this project was on consultation. The Island Councils and communities have

not been involved in the process to develop these Fisheries Plans and

welcomed the opportunity to be consulted. A different format approach from

MMR’s aquaculture development plan and offshore policy has been adopted in

that these plans and the coastal policy have more of a grassroots “voice from

the village” tone. It is very broad brush and this is appropriate as the sector is

poorly defined and there are various formal and informal structures that

operate

The management plans will require legal assistance in promulgating them as

regulations and aligning them to the new Island Government Act 2013 which

enables MMR and the local island government to enter into a management

partnership

Cook Island Maori is the language used particularly in the northern group. It is

important the Management plans and policy is written in both English and

Maori.



1.6 Recommendations

The recommendations are:

That the draft fisheries management plans for trochus and sea cucumber be

finalized and sent to Crown Law for their review. When the drafts are

accepted, a Cabinet and Executive Council Submissions are prepared and the

management plans are adopted.

The Coastal Fisheries Policy needs to be completed and the framework for

coastal fisheries policy acts as a starting guide to completing this process.

Cook Islands should receive further assistance to translate the Management

Plans and Policy into Maori and to implement the management plans and

coastal policy.

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