peb - conservation - coverdec.-1999).pdf · conservation a briefing for the new minister of...

DECEMBER 1999

CONSERVATION

A Briefing for the NewMinister of Conservation

CONSERVATION

A Briefing for the New Minister ofConservation

Published byDepartment of ConservationPO Box 10 420Wellington, New Zealand

DECEMBER 1999

Front cover (clockwise from top right):Ngati Tuwharetoa warriors Tiaki Williams and Elton Smallman place the WorldHeritage plaque over the urupa or place of burial where the taonga lie. Photo byRosalie Gwilliam.Saiya Te Pou in whaling pot on Kapiti Island. Photo by Fiona Oliphant.Plate coral and diver, Kermadec Islands. Photo by Rodger Gray.DOC officers Katrina Upperton and Karen Riddell with a rare native pittosporumnear Whangaroa. Photo by Lisa Forester.

© Crown Copyright 1999

This report may be freely copied provided that the Department of Conservation isacknowledged as the source of the information.

ISBN: 0-478-21907-5

Contents

Executive Summary

Introduction

New Zealand's Natural and Historic Heritage

The Department

The Conservation Task

Maintaining and Restoring Natural Heritage

Maintaining and Restoring Historic Heritage

Helping People to Enjoy their Heritage

Meeting Other Government Requirements

Biosecurity

Duty Towards and Relationship with Maori

Departmental Capability

The Upcoming Year

Public Land Entrusted to DOC

Terms and Definitions

1

5

8

11

15

27

33

39

47

53

59

67

71

75

1

ExecutiveSummary

Kakapo "Manu", Codfish Island

3

Executive Summary

New Zealand�s natural and historic heritage is unique and diverse. It is important

because it provides:

• a sense of identity as a nation

• a wide range of recreational opportunities

• the physical basis of much of our tourism industry and the background for

marketing many of our exports

• soil and water conservation.

The Department of Conservation is the government agency responsible for four broad

tasks:

• Maintaining and restoring natural heritage

• Maintaining and restoring historic heritage

• Helping people enjoy their heritage

• Meeting a diverse range of other government requirements

This brief describes recent achievements, including organisational changes made to

enable the department to work more efficiently and effectively, and the challenges to

be faced.

The major tasks ahead include:

• reversing a widespread decline of indigenous biological diversity

• improving the condition of protected natural areas

• finding and using better ways to sustain biodiversity on private land

• correcting the imbalance between marine resource exploitation and its

conservation

• conserving historic heritage in protected areas

• helping people to enjoy their heritage without damaging it and with facilities that

can be maintained for the long term

• improving relationships with communities, and fostering an ethic of conservation

• making further progress with iwi on co-operative conservation management

• reinforcing a culture in the department of always seeking to improve conservation

performance.

The brief also outlines the �key short-term actions� to address these challenges. These

are the most significant specific actions awaiting resolution by a new Minister of

Conservation, or likely to arise before the end of the current financial year. They are

weighted toward the resolution of policy issues and do not encompass the full range

of conservation action occurring in the field.

Hugh Logan

Director-General of Conservation

5

Introduction

Blue duck habitat,

Newton Creek.

7

Introduction

New Zealand�s natural and historic heritage is an inseparable part of our sense of

identity, because it shows us where we have come from. It keeps pakeha and Maori in

touch with their own and each other�s history, and their relationship with nature.

We see ourselves as outdoors people, and we expect our natural and historic heritage

to be accessible for a wide range of recreation experiences. The opportunity to get

away from the stresses of everyday life, to be inspired, to enjoy and experience

solitude, challenge, adventure and gain a different perspective on space and time is,

for many people, synonymous with being a New Zealander. Many of us have favourite

picnic places, walks, beaches, parts of the back country and high mountains.

Our natural heritage provides services that we often overlook, such as clean water,

reducing the risk of flooding, filtering polluted air and storing carbon. It also provides

clues that contribute to our knowledge about the natural world and has lured

internationally well known naturalists such as Dr David Bellamy and Sir David

Attenborough to make documentaries here, which have been beamed to television

audiences around the world.

The images of a �clean green� environment, impressive natural scenery, the sounds of

nature and accessible outdoor recreation opportunities attract overseas visitors to

New Zealand. These images are the basis for our largest single export earner, the

tourism industry, and are the background that we use to market a wide range of other

exports.

While our country may not be 100% clean and green, the intention and spirit of this

image remains, and much of our environmental legislation and management activities

reflect it. The long tradition of conserving natural and historic heritage also

contributes to our sense of identity, and is a source of pride to most New Zealanders.

New Zealanders have told us on many occasions, including through surveys that the

department has commissioned that they want their children and grandchildren to be

able to enjoy the same, if not greater, benefits of their natural and historic heritage.

Tuatara male at nest entrace,

Aorangi, Poor Knights Islands.

8

NEW ZEALAND'S NATURAL HERITAGE

The natural heritage of New Zealand is so distinctive that some scientists have

described our country as "the closest you can get to studying life on another

planet". Much of New Zealand�s flora and fauna occurs nowhere else on earth.

This is the result of the long period of isolation since ancestral New Zealand

drifted away from Gondwanaland 80 million years ago, evolutionary adaptation

to a battery of geological and climatic events and, until recently, the absence of

predatory land mammals.

Our natural heritage is characterised by:

• ancient beginnings: e.g. weta are almost unchanged from their ancestors

of 190 million years ago; forerunners of seaweeds and several podocarp

species were established more than 65 million years ago, and some bird

species have been around for about 30 million years (e.g. kiwi)

• a great diversity of geologically young landforms (i.e. less than three

million years old) and active landform processes: there is a wide range

of coastlines, plains and lowlands, rivers, lakes, hills and mountains, glacial

features, thermal areas and karst landscapes

• many small offshore islands: some of which are the least-disturbed sites

on earth

• ecosystems unique to New Zealand: e.g. tall kauri forests, spinifex and

pingao dunelands and braided river systems

• high percentages of flora and fauna that occur nowhere else on earth:

e.g. 90% of our native insects and marine molluscs, 85% of trees, ferns and

flowering plants, 80% of invertebrates, 25% of all birds, all 100 species of

weta, 60 reptiles, four remaining frogs and two species of bats

• spectacular diversity of lichens and seaweeds

• many ancient �relicts� and �giants� of the moss and liverwort world

• almost half of the world�s species of whales and one of the smallest and

rarest dolphins in the world (Hector's dolphin, found only in New

Zealand waters)

• distinctive bird fauna: there is a large number of species�334 breed in or

visit the New Zealand region; a relatively low proportion of land species; a

high proportion of flightless species or those with weak flight; and New

Zealand is a global centre for seabirds (65 of the 92 species that occur breed

here and 25 nest only in New Zealand)

• paucity of native land mammals: only two species of bats

• tuatara: the two species of tuatara are the sole survivors of a line of reptiles

that became extinct elsewhere in the world about 60 million years ago, and

they live at least 60 years

• distinctive lizard fauna: there are at least 60 native species, all geckos or

skinks; and the native geckos and all but one skink give birth to their young

live rather than laying eggs, which is the norm elsewhere in the world

• distinctive native frog fauna: the four species of native frogs are amongst

the most primitive known, and have no aquatic tadpole stage

9

Taranaki Falls Track, people

walking in snow with Mount

Ngauruhoe in the background,

Tongariro National Park.

• distinctive invertebrate fauna: there are about 20,000 species of

invertebrates in New Zealand; many are flightless; gigantism is common�

some species occupy the niches filled by rodents in other parts of the world

• wetapunga (the Great Barrier giant weta): one of the two heaviest insects

on earth�individuals can weigh more than a song thrush

• distinctive landsnail fauna: there are about 800 species of endemic

landsnails; up to 72 species of landsnails can be found living together�in

other parts of the world, 11 species is considered high; the vast majority of

the world�s landsnails are small and vegetarian�about 5% of New

Zealand�s species are gigantic and carnivorous (and elaborately coloured).

NEW ZEALAND'S HISTORIC HERITAGE

The historic heritage of New Zealand includes:

• historic buildings and structures, archaeological sites (including

underwater sites), and historic landscapes

• intangible values such as the sense of �place� and �attachment� which are

important to Maori and pakeha

• the ancestral landscapes of iwi, hapu and whanau, waahi tapu, and sites of

significance to Maori.

Lands administered by the department contain 140 places registered by the

Historic Places Trust and 125 historic reserves, including Mansion House

(Kawau Island), Fort Jervois (Ripapa Island in Lyttelton Harbour) and the

Kawerau Suspension Bridge (Otago). There are many thousands of other

historic places, many of which are of high cultural value, including:

• fortified Maori pa, and Maori and European redoubts

• remains of early industries including timber, gold, copper, coal,

gumdigging, sealing and shore whaling

• historic huts relating to mustering, deer culling, tourism and

mountaineering

• places relating to the history of nature conservation such as the

archaeological remains of Richard Henry's bird conservation efforts in

Fiordland from 1890 to 1908.

11

Lake Mackenzie reflections,

Routeburn Track, Fiordland.

TheDepartment

13

The Department

The Department of Conservation�s role is �to conserve New Zealand�s natural and

historic heritage for all to enjoy now and in the future�. In detail the department�s

functions are :

• To manage land and other natural and historic resources;

• To preserve as far as practicable all indigenous freshwater fisheries, protect

recreational fisheries and freshwater habitats;

• To advocate conservation of natural and historic resources;

• To promote the benefits of conservation (including Antarctica and

internationally);

• To provide conservation information;

• To foster recreation and allow tourism, to the extent that use is not inconsistent

with the conservation of any natural or historic resource.

The Department of Conservation was established in 1987, has 1,408 permanent staff 1 ,

employs a large number of temporary and seasonal staff and contractors, and operates

on a budget in 1999/2000 of $157 million (GST excl). Some $21 million of this figure

comes from external revenue.

The department�s activities focus on:

1) maintaining and restoring natural heritage � 50% (by far the largest proportion is

spent on pest and weed control and around 5% of the total also contributes to

other government requirements);

2) maintaining and restoring historic heritage � 5%;

3) helping people enjoy their heritage � 45% (the largest proportion is spent on

maintaining infrastructure).

The department has a culture that reflects the demands of the job, the roots of the

department, and the commitment of staff to conservation. The nature of the

department�s work means that structurally it is decentralised and operates a far-flung

network of offices. Departmental staff are often characterised as self-reliant, working

on their own or in small groups in the field. There is a high level of delegation.

Decentralised management and delegation drive the department to maintain high

levels of professionalism and a strong system of national standards. These attributes,

and an organisational structure which reinforces the importance of delivery in the

field, are products of a reorientation of the department after the tragedy of Cave

Creek, which itself flowed from a failure of departmental performance.

Conservation management and the work of the department is characterised by a high

level of public input. Conservation is based on societal support, and the concept that

conservation land is the common heritage of all New Zealanders. As such,

conservation land is regarded as public land. These principles are inherent in all

conservation legislation. Furthermore, this legislation establishes a

hierarchy of conservation boards and the New Zealand Conservation Authority,

appointed by the Minister. The Authority has powers to approve formal management

plans binding the department and also serves to advise the Minister.

1 The number of permanent staff, expressed as full-time equivalents, as at 30 October 1999.

15

Yellow-eyed penguin, two year

old non-nesting juvenile, Sandfly

Bay, Otago Peninsula.T

he

Co

nse

rvat

ion

Tas

k

NatureHeritage

17

Maintaining and RestoringNatural Heritage

CONSERVATION OUTCOMES

New Zealand�s indigenous flora and fauna is unique and, therefore, internationally

significant. It is also in decline. Halting this decline can only be achieved through:

• The maintenance and enhancement of a core network of protected areas (most of

these are managed by the Department of Conservation; others by private

landowners, local authorities, iwi and community groups);

• The sustainable management of natural heritage in all environments (on land, in

fresh water and at sea); and

• The restored health of natural areas and species resulting from control of

introduced animal pests and weeds.

Achieving these outcomes will maintain the overall natural character of New Zealand

and its �clean green� image.

ACHIEVEMENTS

The protected area network on land now totals about eight million hectares

(refer page 55) held in 13 national parks, 20 conservation parks, about 3,500

reserves (and a variety of other categories). In addition, New Zealanders have

readily embraced the notion of private protected areas. As a result, there are

approximately 250,000 hectares of private protected areas, largely arranged

through the Nature Heritage Fund, Nga Whenua Rahui, and the Queen

Elizabeth the Second National Trust. In total, protected areas cover about

one-third of New Zealand�s land area.

In the marine environment, 1.1 million hectares have some form of protection

in 16 marine reserves, two marine mammal sanctuaries, two marine parks and

one specially protected area. This is less than 1% of the area within the

Exclusive Economic Zone, but almost 7% of the territorial sea.

The Department of Conservation is recognised internationally as a world leader

in eradicating pests from islands, species recovery, and wide-scale and effective

animal pest control. Recovery work is under way for a wide range of

ecosystems and indigenous species including plants, birds, lizards, frogs, bats

and invertebrates. Of particular significance has been the development of

single-dose poisons in special bait formulations, and the development of bait

stations and aerial application methods. In recent years, the department has

expanded its successes on offshore islands to several �mainland islands�, and

achieved some significant conservation successes.

18

Strategies are in place to deal with the growing threat posed to indigenous

ecosystems and species by plant and animal pests. Pest control programmes

currently cover about 1.5 million hectares within the network of protected

areas. The department�s weed strategy and systematic approach to controlling

weed impacts has led us to be recognised by regional councils as a national

leader.

The combination of the New Zealand Coastal Policy Statement, regional coastal

plans and the role played by the Minister of Conservation as administrator of

the regime, provides for an integrated approach to managing the coastal

environment.

The department, the Ministry of Fisheries and the fishing industry have made

significant progress on reducing by-catch of protected species in fishing.

Achievements include the development and use of bird-scaring devices,

controls on the maximum level of by-catch of seals in the squid trawl fishery,

restrictions on gillnetting and the use of acoustic devices on commercial

gillnets.

THE CHALLENGE

New Zealand and the department have made major strides in natural heritage

conservation. Nevertheless, the task ahead is very large.

For 80 million years, the flora and fauna of New Zealand developed subject

only to natural disturbances. Human beings arrived perhaps only 800 years

ago. Their impact, and that of the animals and plants they brought with them,

was devastating:

• animal pests: rabbit, deer, thar, chamois, wallaby, possum, goat, pig, stoat,

weasel, ferret, rat, dog, cat and hedgehog are still having a large impact

• weeds: there are now over 2,000 taxa of naturalised plants, and more than

200 of these cause serious adverse impacts on natural heritage

• huge decline in cover of indigenous forests: 1,000 years ago they covered

most of the country; now they cover about 15% of their original area (e.g.

1.2 million hectares of kauri forest had been reduced to 200,000 hectares by

1900�today there is less than 5,000 hectares)

• decline and degradation of freshwater habitats: 85% of all wetlands have

been drained or degraded; nation-wide only two of the 70 major

catchments remain free of alien invasive species, and there are now nearly

as many alien species of aquatic plants naturalised as there are indigenous

species (52 cf. 59)

• extinctions: at least 45 bird species and five formally-named vascular plant

taxa have become extinct since human settlement

• animal species that are priorities for conservation management action:

include more than 50% of the native invertebrates, all of the frogs and bats,

33% of fish and 60% of reptiles and birds, the majority of giant landsnails and

all giant weta

19

TRENDS OF BIODIVERSITY DECLINE

• 11% of the world�s 300 most endangered birds and other animals are

endemic to New Zealand

• human activities: farming, fishing, forestry, settlement, drainage and road

construction have had massive impacts on our natural heritage

• 107 vascular plant taxa are threatened: 24 are formally-described vascular

plant taxa and a further 14 taxa of unresolved taxonomic standing are criti-

cally endangered, 33 are endangered and 50 are vulnerable 2

• introduced fungal pathogens: white rust, verticillium wilt, phytophora,

powdery mildew and at least one virus (Cucumber mosaic virus) are re-

sponsible for large declines in threatened plants such as Sicyos aff. australis

and the coastal scurvy grasses

• horticultural plant hybrids threaten the native species: e.g. the integrity of

ngaio populations in several sites around New Zealand

• insect pathogens: e.g. brown and black scale pose a serious threat to the

critically endangered fern Asplenium pauperequitium.

2 de Lange PJ, Heenan PB, Given DR, Norton DA, Johnson PN and Cameron EK (in press) Threatened and uncommon

plants of New Zealand. New Zealand journal of botany 37:603-628.

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2030Years

Predominant 20th

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Current trend

of decline

Halting the decline of New

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achievements of last 25

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Biodiversity conservation

achievements of the last 25 years

Anticipated biodiversity conservation

achievements from halting the decline

20

THE WAY AHEAD

Halt ing the Decl ine in Indigenous Biodiversi ty

The Ministry for the Environment report The State of New Zealand�s Environment

1997 concluded that biodiversity decline is New Zealand�s most pervasive

environmental issue.

The ongoing collapse of important populations of kiwi

is a dramatic example. On the mainland, kiwis no

longer occur in many previous strongholds and most

populations are declining by 50% every decade as a

result of clearance of land for farming and forestry and

predation by possums, mustelids, dogs and cats. If this

decline continues, then most kiwi populations on the

mainland face extinction within the next 75 years.

In response, the Government directed the department

and the Ministry for the Environment to prepare a

New Zealand Biodiversity Strategy. The Prime

Minister launched the draft strategy in January 1999,

and the subsequent consultation process has resulted in substantial (generally

positive) public discussion on the strategic priorities. A final strategy has been

prepared for Cabinet approval. It focuses on the goal of halting the decline of indig-

enous biodiversity as rapidly as possible, and provides an overarching framework so

that all biodiversity management actions can be aligned, prioritised and co-ordinated

over the next 20 years.

It estimates that the additional effort required to take the highest priority actions is

equivalent to an average of $45�55 million in additional expenditure over a 20-year

period. Achieving these actions would depend on the contributions of all New

Zealanders and co-operation between central government, local government, the

primary production sectors, iwi and the broader community.

Key Short- term Actions

• Achieve Cabinet approval for the New Zealand Biodiversity Strategy.

• Contribute to a ministerial co-ordinating group implementing the New Zealand

Biodiversity Strategy, to decide on the highest priority investments and

co-ordinate delivery of priority actions.

• Decide on the establishment and funding of five intensively-managed kiwi

protection zones.

Gett ing Better at Combating Weeds and Animal Pests

An army of predatory and browsing animals and aggressive weeds is the greatest

single threat to New Zealand�s indigenous species and ecosystems on land. Current

levels of control address only about 45% of the area of forest at risk of canopy collapse

due to possums. Intensive control of deer and other animal pests occurs at only a few

sites. A significant number of sites where weed impacts could cause an extinction of

a natural community or native species are not controlled.

Possum in tree, Ngongotaha

Hatchery grounds.

21

The department has been able to improve the efficiency of pest control programmes

over the past 15 years at least five-fold. We still need to get better. Major research

programmes are under way to find more effective ways of controlling stoats and

investigating biocontrol for possums. Improved information is required about our

natural heritage, its condition, threats and opportunities for its maintenance and

restoration. There are significant gaps in taxonomy and genetic information and in

techniques for ecological survey and methods for assessing condition.

The department uses priority-setting systems for single pest species such as possums

or goats. An approach that integrates priorities for goats, possums, deer and other

animal pests will improve effectiveness and efficiency. The overall decision-support

framework that the department is developing requires managers to be clear about the

best conservation actions at places and will help to prioritise management actions.


• Better integrate the management of pests and other threats within sites and by

different agencies (See Actions for Supporting More Effective Conservation

Decision-making, page 31)

Sustaining Biodiversi ty on Private Land

New Zealand�s biodiversity continues to be

significantly affected by private land management.

An advisory committee, appointed by the

Minister for the Environment, has prepared a

discussion document about how to sustain

biodiversity on private land. The committee

recommends a range of measures including

national and local accords on biodiversity, a

National Policy Statement on Biodiversity under

the Resource Management Act 1991, non-statutory

guidance, and government actions and incentives.

The report would provide the basis for a

constructive public discussion about these issues.

The department believes that it needs to shift from

a heavy reliance on submissions and legal

processes under the Resource Management Act to

working more closely with rural communities.

Potential ways of doing this include direct

negotiation, incentives, technical advice, education,

information and co-operative projects.


• Release of the Ministerial Advisory Committee report on sustaining biodiversity

on private land.

• Contribute to work on community-based solutions to the problems of sustaining

biodiversity on private land, by supporting constructive public debate on the

report of the Ministerial Advisory Committee.

Dave Marley has completed a personal

project to protect all the areas of native

bush on his Rotomanu dairy farm.

22

• Complete the internal strategy on heritage protection beyond the public

protected area network and the use of the Resource Management Act by the

department.

Ensuring that the Protected Area Network includes theDiversi ty of our Ecosystems

If New Zealand is to retain its distinctive natural character and provide the public with

a reasonable opportunity to enjoy their heritage, then the protected natural area net-

work will have to represent the diversity within each broad type of ecosystem (not

just one example of each).

On a national scale, poorly represented places include low-

land forests, dunelands, lowland wetlands and peat bogs,

coastal forest and scrub, braided river ecosystems and low-

land tussocklands.

For some types of ecosystems, such as mountainlands and

upland forests, New Zealanders are fortunate to have

relatively large areas protected. These areas could be said to

be larger than a �representative sample�. Most of these

areas were not suitable for agriculture or other direct land

use and so their protection was generally not contentious

(especially as the indirect services they also provide, such as

clean water and recreation, are widely appreciated). Protection of more than just a

representative sample of wild and natural areas has considerable public and political

support, and this is reflected in our legislation.

It is against this background that any proposals to rationalise (i.e. sell) areas that are

supposedly over-represented in the network to fund new purchases would need to be

carefully considered.

Legal protection is a public long-term commitment to maintaining and restoring

natural heritage and gives the community, through the department or others,

confidence to invest time and money to help to protect and restore it. The Nature

Heritage Fund and Nga Whenua Rahui Fund play important roles in adding to the

protected area network, especially small and medium sized areas. The Government

recently used these funds for large-scale purchases of cutting rights at Waitutu and

Lords River in Southland. These are important additions, but the use of the two funds

has implications for their capacity to play their intended role. The total budget for the

two funds available for other purchases over the period 1999-2002 has been reduced

from $14.6 million to $7.4 million.


• Seek to restore the Nature Heritage and Nga Whenua Rahui Funds to the levels

previously available for recommended allocations by the committees.

• Better explain the rationale behind the network of protected areas; identify

where the gaps are, and which areas do not contribute to the achievement of

conservation outcomes.

• Complete actions to achieve the Hauraki Gulf Marine Park and to advance the

proposed Rakiura National Park (Stewart Island) through the appropriate

processes.

Flax swamp and kahikatea,

Wainihinihi, Taramakau

Valley, Westland.

23

Managing Confl ict ing Expectat ions of New Zealandersabout Introduced Animals and Control Methods

Some introduced animals, including

horses, deer, thar, and ferrets, and more

recently rainbow lorikeets, can cause

severe impacts on natural heritage but are

also valued by some people for hunting or

for aesthetic reasons. Controlling these

animals to protect native species and

ecosystems is often contentious. Some

people strongly object to the use of toxins

to control animal pests, while others are

concerned about the humaneness of

traps. There is likely to be at least some

degree of public concern in future over

the biological control of possums, should

the technology become available. On the

other hand many people are extremely

concerned about the impacts of

introduced animals and demand that they

be eradicated nationally or regionally.

While eradication usually offers the

greatest long-term conservation gains it requires a significant amount of planning and

is often very expensive. Opposition to eradication and control programmes can cause

additional costs and, in some cases, increase the risk of failure. Opposition can also

spill over into other conservation projects.

Public responses to discussion documents on deer control and ferrets, and to the

management plan for rainbow lorikeets, show a polarisation of views between those

seeking protection for these introduced animals and those wanting tougher control

measures.


• Implement management plan for rainbow lorikeets

• Finalise policies on deer control and ferrets.

Safeguarding the Indigenous Nature of FreshwaterEcosystems

After 12 years of relatively consistent effort aimed at stemming the tide of aquatic

habitat degradation, the department considers that insufficient progress has been

made (and significant losses have occurred) in terms of freshwater wetland

protection, contamination of lowland waterways, barriers to fish migration, dams and

dewatered rivers. An issue for the department is how to deploy its limited resources

to more effectively address the most critical threats at the most important locations.

This will require more comprehensive inventory and assessment, further capacity

building in the department and key associates, and a more co-ordinated

decision-making process.

Wapiti bulls, Te Anau.

24

Very few of New Zealand�s lakes, rivers and streams have escaped the

major impacts of introduced fish, snails and waterweeds. Despite this,

public awareness of the problems caused by releasing species into aquatic

systems remains low.

The Minister of Conservation has responsibility for internal containment of

alien aquatic species and their exclusion from sensitive waters under the

Conservation Act 1987. In addition, the Department of Conservation has

specific responsibilities for control of noxious fish, koi carp, and

specified unwanted organisms. However, the Biosecurity Act 1993, and

the Resource Management Act 1991, also contain provisions relating to

freshwater pests and weeds and this sharing and overlapping of

responsibilities has hindered management. The department, regional and

district councils and fish and game councils need to work together more

effectively to co-ordinate plans, priorities and actions. This may require

clearer agreements on the accountabilities of respective agencies and

legislative amendments to provide more appropriate frameworks for

decision-making about controls on alien aquatic species.

A current audit of the Department of Conservation by the Office of the Auditor-

General into the implementation of the Ramsar Convention on Wetlands may clarify

agency roles and expectations.


• Complete the review of the alien containment provisions in the Conservation

Act.

• Consider relevant recommendations of the Auditor-General into implementation

of the Ramsar Convention on Wetlands.

Sustaining the Marine Environment

A ministerial review in 1998

concluded that there is no

overarching set of policy goals

or principles for marine

management, and that policy

development and service

delivery by marine manage-

ment agencies is uncoordi-

nated. A better balance needs

to be achieved between

marine resource exploitation

and marine protection. There

is a growing interest in the wealth-generating capacity of the marine environment and

in securing marine areas for customary use purposes. As a result, tensions between

fishing interests, iwi and conservation interests are increasing. Progress must also be

made on ensuring that the marine environment is not irreversibly damaged by

continued overfishing, coastal development and land-based sources of marine

pollution.

Young River, Mount Aspiring

National Park.

Fishing near Kapiti Island at

sunset. Red-billed gulls in

foreground.

25

Cabinet has asked officials to report back in March 2000 with initial goals and

principles for marine management, drawn from existing statutes and policies, and a

framework for evaluating options for improving the co-ordination of policy and

service delivery. The Government has also announced that it will develop an oceans

strategy for New Zealand by October 2000 to enable ocean resources to be developed

and exploited in a sustainable way and in a way which does not adversely affect the

marine environment. The Department of the Prime Minister and Cabinet is leading a

combined project to complete these. The Department of Conservation will

contribute to this project as a result of its responsibilities for management of the

coastal environment, marine reserves, marine mammals and protected species.

The department is also reviewing the Marine Reserves Act 1971, to ensure that its

purpose is clear and that it fits appropriately within the wider framework of marine

management statutes and tools, and completing a marine reserves strategy.


• Contribute to the Department of the Prime Minister and Cabinet�s marine

management and oceans policy project.

• Publish a discussion document and undertake consultation on the review of the

Marine Reserves Act.

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Maintaining and RestoringHistoric Heritage

The recent ministerial review of historic heritage management led to a

realignment of roles and responsibilities. Until September 1999, the Minister of

Conservation was responsible for historic heritage including the Historic Places Act

1993 and the New Zealand Historic Places Trust. The department provided policy

support for historic heritage. These responsibilities and roles now lie with the

Minister for Culture and Heritage and the Ministry for Culture and Heritage.


As the manager of almost one-third of the country and most foreshore and seabed, the

department is the guardian of much of our historic heritage beyond the urban and

developed environment. In addition, the administration of the Reserves Act 1977 by

the department has an important role in the protection of historic heritage features on

reserves administered by other parties.

In the light of the review of historic heritage management, the department considers

that its role is to ensure that there is a core protected area network of representative

historic heritage features, with opportunities for the public to experience that

heritage. The department will manage some sites and so will other bodies, which

represent the appropriate community of interest (e.g. iwi, the New Zealand Historic

Places Trust, local community groups and local authorities).

ACHIEVEMENTS

The department manages 140 historic places that are registered by the Historic

Places Trust.

Nationally, there are 213 historic reserves of which the department manages

125.

The department has made significant advances in the management of historic

heritage. Existing standard operating procedures and best practice have been

reviewed and an Historic Heritage Asset Management System has been

developed and will shortly be integrated with the Visitor Asset Management

System.

Notable recent conservation achievements have included stabilisation of the

1925 Kaiarara kauri timber driving dam on Great Barrier Island, restoration of

the 1864 North Egmont Camphouse, and major repairs at Mansion House and

the historic wharf, Kawau Island.

30

An enhanced Ministry for Culture and Heritage was established on 1 September

1999, with the department providing ministerial support to facilitate this

establishment.

THE CHALLENGE

In 1996 the Parliamentary Commissioner for the Environment reported that

significant losses of historic and cultural heritage in New Zealand are

continuing. For example:

In 1998 the Historic Heritage Review found that historic heritage (and

particularly Maori heritage) is continuing to be destroyed at an alarming rate.

THE WAY AHEAD

Improving the Department �s Management of HistoricHeri tage

The department aims to better integrate

the management of historic heritage

into its work and improve the way it

interprets historic heritage to the

public.

The implementation of the Historic

Heritage Asset Management System will

involve the preparation of conservation

plans and work specifications, and the

implementation of high priority

remedial work. However, the numbers

of historic heritage features on

conservation areas are such that the

department faces a significant challenge

in preventing their deterioration.

126-year old Serpintine Church

in Central Otago.

• in Auckland, less than 200 hectares of the original 8,000 hectares of Maori

archaeological stonefield areas were still in existence

• in the lower Hauraki Plains, 40-45% of all archaeological sites in the area

affected were destroyed in the 1970s and 1980s by the Waihou Valley flood

protection scheme

• in Wellington, 41 buildings on the Historic Places Act Register of Historic

Places (12%) were destroyed in the period 1980-95

• in Canterbury, 40% of archaeological sites in the hill country and 70% of sites

elsewhere had been destroyed or damaged.

31

Capital is ing on Progress Made in the Historic Heri tageReview

Most of the recommendations of the review received a strong level of support in

public submissions. In March 1999, Cabinet agreed to a series of recommendations

and initiatives. The main consequences have been:

• the establishment of an enhanced Ministry for Culture and Heritage

• a review by Te Puni Kokiri of the Government�s role in Maori culture and heritage

(the Taonga Maori Review), which will consider the need for a distinct Maori

heritage agency

• strengthened provisions for historic heritage generally in the Resource

Management Amendment Bill introduced in July 1999, including the transfer of

the regulatory provisions of the Historic Places Act 1993 for archaeological sites to

the Resource Management Act 1991

• a proposal (to be explored further) to increase emphasis on voluntary protection

through the establishment of a national incentive fund, similar to the Nature

Heritage Fund, to assist owners to protect and conserve historic heritage.

Although the department has relinquished the lead national policy role for historic

heritage to the Ministry for Culture and Heritage, it retains an interest in the outcomes

of the Historic Heritage Review. If the initiatives arising from the review do not

proceed, then the fundamental problems in the historic heritage management system

identified by the Parliamentary Commissioner for the Environment in 1996 will

remain unresolved.

The proposed historic heritage amendments to the Resource Management Act

constitute the fundamental reform proposal.


• Progress the historic heritage provisions in the Resource Management

Amendment Bill.

• Explore further the establishment of a national contestable incentive fund to

assist owners to protect and conserve historic heritage.

• Lift the level of visitor information and interpretative information at historic

sites managed by the department.

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Helping People to Enjoy theirHeritage


The National Parks Act 1980, the Conservation Act 1987, and the Reserves Act 1977,

all contain explicit recognition that the enjoyment of natural heritage is one of the

main reasons for the existence of the department and the protected area network.

People should be able to experience and enjoy a full range of their natural and historic

heritage, including knowing about it. The department provides information, facilities

and safety services and establishes legal access. Local authorities, concessionaires,

private landowners and iwi are other important contributors to this outcome.

People�s enjoyment of this heritage also depends on their being able to learn about it

and being involved in its management. The department, therefore, contributes to

educating and providing information about New Zealand�s natural and historic

heritage. Other government agencies, museums, Crown research institutes and other

information providers also have important roles.

Conservation legislation includes numerous provisions designed to allow people to

be involved in decision making and management of their heritage. The department�s

role is to identify and facilitate opportunities for people (communities, iwi,

landowners and individuals), which range from volunteer positions on a

departmental project to a full management role.

ACHIEVEMENTS

Visitor assets managed by the department include about 11,000 kilometres of

tracks and 8,000 bridges, nearly 1,000 back country huts, 221 campsites, 31

visitor centres and thousands of boardwalks, hand rails and signs.

The nine tracks on the system of Great Walks allow less experienced trampers

to enjoy some of the special places in New Zealand�s back country. The tracks

are clearly marked, well bridged and well sign-posted and maintained to a

tramping/walking standard suitable for most abilities and for people with

average physical fitness. Huts, campsites and toilet facilities are also provided.

The department manages international and national award-winning facilities

for enjoying and learning about natural heritage: e.g. the National Wildlife

Centre at Mt Bruce and the nearly completed 150 kilometre rail trail in Central

Otago (a joint project with the Otago Central Rail Trust).

The Visitor Asset Management System has been implemented to help manage

the 13,800 structures that the department is responsible for. Good progress has

been made in identifying visitor assets and inspecting them against the new

national standards, and building new assets in line with the agreed standards.

36

Work is well under way to upgrade assets that do not meet the standards.

The department manages the Taupo sports fishery, enabling over 60,000

licence holders to enjoy a world class rainbow trout fishery. Sports fisheries

often provide many young urban New Zealanders with their first encounter

with their natural heritage.

The department has revamped its worldwide web-site, and the number of users

has increased dramatically. The web-site is being further developed as a key

public information tool.

Each year the department runs over 100 visitor programmes, attracting about

20,000 people. About 90% of those surveyed were satisfied or very satisfied

with the programmes.

The development and implementation of a concessions system (including

relevant legislation) helps to ensure that services, business activities and

facilities do not conflict with maintaining natural and historic heritage on

protected heritage areas. The concession system covers services such as

shops, tea-rooms and restaurants, and business activities such as grazing

animals, telecommunications facilities, sphagnum moss gathering, filming and

beekeeping. The official authorisation given is usually in the form of a lease,

licence, permit or easement. The department currently manages about 4,000

approved concessions and access arrangements.

Opportunities for active involvement in conservation are provided through

volunteer programmes and projects provided for the New Zealand

Conservation Corps.

THE WAY AHEAD

Identi fying the Standards Required and EnsuringFaci l i t ies are Maintained to these Standards Over Time

The law requires that the department maintains visitor facilities to safe standards.

Most of these standards are set out in the New Zealand Building Code. Also, with

changing recreation preferences, there is some demand for higher standard (more

comfortable) facilities in a wider range of locations. There is, however, a polarity of

public views about this. Some users are vehemently opposed to any higher standards

and also challenge the appropriateness of some of the building code standards. The

department needs to align the visitor assets to better meet visitor preferences and

expectations, at both ends of the spectrum. This raises several inter-related issues:

• how many of the existing facilities should be maintained, and to what standards?

• what should the department do with the little-used facilities?

• to what extent should new visitor demands be met?

The department has implemented an annual programme of structure maintenance

and replacement based on inspection work and the estimated life of the structure.

37

Current estimates are that more funding is required to manage these facilities to meet

even the current legal standards on a sustainable basis. Options, in response to the

questions listed above, will form the basis of a Visitor Asset Management Strategy to

be prepared by September 2000.


• Complete a Visitor Asset Management Strategy by September 2000.

• Complete inventory and inspection phases for all visitor facilities, and

maintain, upgrade, replace or remove assets to ensure both strategic priorities

and minimum standards are met.

Meeting Changing Information Needs

With changing recreation preferences and new technologies there is a demand for

different types of information. A review of visitor information provided by the

department is being undertaken. This review is the first step in what the department

would like to see as a major improvement in visitor information to enhance

enjoyment of conservation land.


• Complete a review of visitor information provided by the department,

identifying key sites, and themes, and the most effective media for presenting it.

Managing Concessions to Advance Conservat ion

On behalf of the Minister, the department grants �concessions� to operate businesses

on conservation lands and waters. Concessions exist because of a principle set in

conservation legislation that businesses operating on conservation land should pay a

form of rental. There is a clear public process to follow. This process is seen by many

businesses as cumbersome and bureaucratic and applied inconsistently throughout

the country, although conservation interest groups see the public process as an

important way of protecting places and avoiding over-commercialisation.

Concessionaires also feel that the department and the processes it manages ignore the

positive contributions they could make to conservation through their businesses. The

department needs to explore ways of working productively with businesses that can

offer benefits to conservation while retaining the public nature of the process and

managing impacts on protected areas and species.


• Revise the department�s standard operating procedures for concessions

management to make them simpler (with minor legislative change, if

necessary).

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Meeting Other GovernmentRequirements


Like all government agencies, the department has a wide range of obligations under

law and Cabinet directives (e.g. occupational health and safety, public

accountability), and must contribute to the Government�s international work.

The department also has a range of responsibilities that have been assigned to it

because it is the most appropriate agency available, either because it has the

necessary management expertise, or because the functions are related to

conservation outcomes. The department is required to ensure that non-conservation

reserves (e.g. recreation reserves, local purpose reserves) are being correctly

administered and meeting the needs of society. The department is also required to

assist in the tenure review of Crown land held under perpetually renewable leases.

The department is also a rural fire authority (through delegation from the Minister of

Conservation). It has responsibilities under the Forest and Rural Fires Act 1977 for its

own land, unalienated Crown land and areas within one kilometre of these lands

(other than foreshore and seabed, which sit inside a Rural Fire District or Fire Service

District).

The sports fish and game responsibilities of the department under the Conservation

Act 1987 are not extensive as most responsibility lies with the fish and game councils.

The department provides policy support to the Minister and manages the Taupo

sports fishery.

In a few locations the department is carrying out functions normally carried out by

other public bodies. These include managing roads on behalf of Transit New Zealand

and providing local authority services, such as rubbish and sewage removal at Mount

Cook and Whakapapa villages.

ACHIEVEMENTS

Departmental staff have represented New Zealand in pursuit of government

outcomes at international meetings relating to conventions and agreements to

which New Zealand is a party. For example:

• the Convention for the Protection of World Cultural and Natural Heritage

• the United Nations Convention on Biological Diversity (CBD)

• the Convention on International Trade in Endangered Species of Flora and

Fauna (CITES)

• the Convention on Wetlands of International Importance as Waterfowl

Habitats (Ramsar)

42

• the Convention for the Conservation of Southern Bluefin Tuna

• the Convention for the Conservation of Antarctic Marine Living Resources

(CCAMLR)

• the Environmental Protocol to the Antarctic Treaty.

The department has also represented New Zealand at international meetings in

line with the Government�s overarching goals and strategic priorities, e.g. the

International Whaling Commission, the South Pacific Regional Environment

Programme and closer relations with Australia through the Australian and New

Zealand Environment and Conservation Council.

The department and Local Government New Zealand are jointly finalising a

guide to help local authorities to better administer their reserve networks.

The reviews of the tenure of Crown land held under leases over the past eight

years in the South Island high country, have resulted in the protection of

78,000 hectares of significant inherent values under the Reserves Act 1977, and

Conservation Act 1987, or otherwise subject to binding legal agreements, as

well as 42 new public access easements.

The department maintains a fire management capability in accordance with

the Forest and Rural Fires Act 1977. As at 30 June 1999, the department had

available for fire-fighting duties 373 fire support staff, 1,115 fire fighters, 409

crew bosses and 162 officers in charge of fire trained to departmental

standards and the competencies set out in the Rural Fire Management Code of

Practice.

The department (and fish and game councils) provide advice to the Minister of

Conservation on sports fish and game matters.

Lake Taupo and its tributaries comprise one of the premium wild rainbow trout

fisheries in the world. Rainbow trout, first released just over 100 years ago have

thrived and are the predominant species. Over 100,000 trout larger than 45

centimetres are caught each year. This function of the department also

contributes in helping New Zealanders enjoy their heritage.

Sperm whale tail with Kaikouras

in the background.

The department has represented

New Zealand at international

meetings in line with the

Government's strategic result

areas, e.g. the International

Whaling Commission.

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THE WAY AHEAD

Improving Administrat ion of the Reserves Act as i tRelates to Local Authori t ies

Over the past two years the Minister of Conservation, Local Government New

Zealand, local authorities and the department have worked closely to review the

Reserves Act 1977 as it affects local authorities. The review concluded that the under-

lying philosophy and structure of the Reserves Act is still sound and that no major

reform is warranted at this time. The Minister of Conservation agreed to support four

key actions:

• the Department of Conservation and Local Government New Zealand to jointly

prepare a guide for the administration of the Reserves Act

• a policy that Crown and local authorities will share the net proceeds from sales of

revoked reserve lands

• delegation of some of the Minister�s approval and consent functions under the

Act to territorial authorities as reserve administering bodies

• amendments to the Act to improve workability and reduce administration costs

The Minister decided in October 1999 not to introduce the Reserves Amendment Bill

before the election.


• Assist Local Government New Zealand to complete the Reserves Act Guide to

enable improved administration of the Act and effective implementation of the

new disposal policy

• Delegate some of the Minister�s approval and consent functions under the

Reserves Act.

• Introduce the Reserves Amendment Bill and legislate the proposed amendments.

Ensuring that Funding is Avai lable to Achieve theObjects of the Tenure Review Process

Up to one million hectares of Crown pastoral lease land in the South Island high

country may become part of the

protected areas network under

the Reserves Act 1977, and

Conservation Act 1987, through

tenure review. These new areas

have ongoing management costs

that are the responsibility of the

department (not the Commis-

sioner of Crown Lands). It has

always been anticipated that the

savings resulting from adminis-

tration of pastoral leases would

be transferred to the department

for management of newly acquired protected natural areas, but this has not yet

happened.Poplars Station with Windy Point

terraces in foreground.

44

Achievement of the objectives of the Crown Pastoral Land Act 1998 are constrained

because of limitations on the use of funds from the Land Tenure Reform Account and

there not being sufficient funds in the Account to purchase entire pastoral occupation

lease properties where this would enable the best possible tenure review on

adjoining leases.

In order to maintain good relationships with lessees and the efficient functioning of

the tenure review process, as prescribed by the Act, it is essential that purchases of

covenants and easements on freehold land are not reliant upon a separate fund (such

as the Nature Heritage Fund).


• Develop with the Commissioner of Crown Lands a funding mechanism to allow

for the purchase of entire properties where this enables the best possible tenure

review on adjoining pastoral leases.

• Develop, in consultation with the Commissioner of Crown Lands, a funding

mechanism (perhaps a revolving fund) to be used for the purchase of interests

in freehold land associated with tenure review.

Improving Overal l Rural Fire Control Capaci ty

The Department is the largest rural fire authority; it draws fire fighters from its own

staff and registered volunteer rural fire forces. In recent years forestry companies and

territorial local authorities have tended to outsource the delivery of their operations,

and there is now a smaller pool of well trained experienced fire fighters in local com-

munities to deal with fires.

The Department has provided its fire fighters to cover shortfalls in the ability of other

rural fire authorities to meet their obligations to deal with fires under the rural fire

managment code of practice. This has:

A DOC fire crew at Dry Acheron

Station waiting for the wind to

die down.

45

• resulted in an expectation that the Department�s fire crews will continue to cover

shortfalls in the availability of fire fighters

• reduced the ability of departmental staff who are fire fighters, to carry out their

conservation tasks.

Key Steps Forward

• Clearly define the Department�s position on the provision of its resources to

other rural fire authorities during fires at national (i.e. National Rural Fire

Authority) and at regional levels (i.e. rural fire committees), and advocate for

all rural fire authorities to meet their obligations under the rural fire

management code of practise.

• Support National Rural Fire Authority working groups and the Fire and Rescue

Services Industrial Training Organisation to improve the rural fire

management systems.

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Biosecurity

Biosecurity is the management of risks posed by weeds, animal pests and disease. It

involves the assessment of risks posed by both intentional and unintentional

introductions, border control, surveillance, emergency response, and pest

management.

The absence of biosecurity policies in the past has left New Zealand with enormous

weed and animal pest problems. Management of weeds and pests on the protected

areas network is a large part of the department�s core business under Vote

Conservation. This section outlines work that the department carries out under a

separate purchase agreement with the Minister for Food, Fibre, Biosecurity and

Border Control, funded through Vote Biosecurity.


Since the Biosecurity portfolio was established in 1997 the department has had

responsibility for advising the Minister for Food, Fibre, Biosecurity and Border Control

on biosecurity risks to indigenous flora and fauna.

The department also has an operational biosecurity role. Programmes funded

through Vote Biosecurity include the eradication and control of Undaria seaweed

around Stewart Island, and weed and pest control work undertaken to meet agreed

"Crown as exacerbator" obligations under regional pest management strategies.

The department also purchases biosecurity services for the detection of new pests

and diseases of indigenous forests.

ACHIEVEMENTS

The department has appointed two Chief Technical Officers under the

Biosecurity Act 1993, has been an active member of the Biosecurity Council,

and prepared internal policies and protocols for determination of unwanted

organisms and for response to new incursions.

The department has contributed to interdepartmental initiatives to develop

generic biosecurity policies and a consistent biosecurity decision-making

framework.

The department has commissioned analyses on the risks to native flora and

fauna from weeds, avian disease and forest pests.

Agreed Crown obligations to undertake weed and pest control under regional

pest management strategies have been met.

50

THE WAY AHEAD

Leadership and Co-ordinat ion of the Government �sBiosecuri ty Programme

When the biosecurity portfolio was established it was envisaged that departments,

including the Department of Conservation, would, over time, build capacity to

manage biosecurity risks to their respective sectors. More recently, however, the

Ministry of Agriculture and Forestry (MAF) Biosecurity Authority has, at the

suggestion of the Minister, taken a greater leadership role in co-ordinating the

Government�s biosecurity programme and responding to incursions, rather than

having departments duplicate MAF�s biosecurity capability. Our first experience of

having MAF undertake this new role, in the delimitation survey for the eastern banjo

frog carried out this November, is that it has worked well.

Operational biosecurity departments, including the Department of Conservation, are

currently developing separate memoranda of understanding with the MAF Biosecurity

Authority to specify the generic services MAF will provide to each department with

regard to assessment of border risks, preparation of import health standards, and

responses to new incursions.

The State Services Commission is also working on options for further reorganisation

in the areas of food, fibre, biosecurity and border control, including the option of

creating a new Ministry for Biosecurity. A separate Border Control Review has been

undertaken and a report on the merits of a single border agency will be released

shortly. There are strengths and weaknesses with the various proposals under

consideration and no clear preferred set of options from a conservation

perspective. The department will continue to have input into these review processes

to ensure that any further reorganisation of the Government�s border control and

biosecurity capabilities improves co-ordination across biosecurity agencies and

improves protection for native flora and fauna.


• The department will continue to provide advice to the Minister for Food, Fibre,

Biosecurity and Border Control, and the Biosecurity Council to ensure that any

proposals for further reorganisation of the Government�s border control and

biosecurity capabilities improve the identification, assessment and

management of biosecurity risks to native flora and fauna.

Integrat ion of Risks to Flora and Fauna into Biosecuri tyDecis ion-making

The ability of biosecurity agencies to assess and manage risks to flora and fauna is

currently hampered by a lack of scientific knowledge of potential pest organisms and

their likely impacts on native species and ecosystems. An interdepartmental

biosecurity risk management project, carried out in three stages since 1997, has

highlighted the need for better integration of risks to indigenous flora and fauna into

biosecurity decision-making and made recommendations for improving integration.

51


• The reports and recommendations from the biorisk project need to be

considered and, where appropriate, adopted by the Biosecurity Council and

implemented by departments.

Reducing the Threat of Marine Pests being Introducedvia Bal last Water or on the Hulls of Ships

New Zealand has so far escaped the major ecological disasters caused elsewhere in

the world by marine pests such as the Zebra mussel, Asian clam and Northern Pacific

Seastar, but remains vulnerable. The Ministry of Fisheries has responsibility for

marine biosecurity but, as yet, no government department has operational capability

for marine surveillance or emergency response. Because of the significant risk to

marine species and ecosystems, the department is working closely with the Ministry

of Fisheries to strengthen marine biosecurity. One option currently being considered

is for the Ministry of Fisheries to contract surveillance and response services from the

department.


• Continue to work with the Ministry of Fisheries to improve the Government�s

marine biosecurity capability, in particular, the lack of surveillance and

response capability.

Improving the Process for Funding Responses toOutbreaks of New Incursions

One of the issues currently being considered by the Biosecurity Council is funding for

responses to new incursions of exotic organisms. Currently, departments are

required to seek funding for responses on a case-by�case basis from Cabinet, or

reprioritise to meet costs. This can cause uncertainty and delays in responding to

new incursions. A specific annual appropriation for the initial phase of responses

would help to resolve the problem.


� Contribute to the development of an improved process for funding responses to

new incursions.

53

National Conservation Week

poster competition winner, Sharn

Te Pou with his mother, Denise

Te Pou at Auckland Museum.

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Duty Towards andRelationship with Maori

Maori as tangata whenua have strong connections with many conservation areas

because they include ancestral lands, water, sites, wahi tapu and other taonga. Most

of the national parks and reserves and conservation lands in the top of the South

Island and the North Island are subject to Treaty of Waitangi claims. The roles and

responsibilities of the department in relation to Maori are complex and the issues can

be difficult, but the opportunities for the department, conservation and the

community at large can be considerable.


Section 4 of the Conservation Act 1987 recognises Maori interests in conservation

management by providing that the Act shall be so interpreted and administered as to

give effect to the principles of the Treaty of Waitangi. Section 4 is one of the strongest

proactive Treaty provisions enacted in legislation. The Kaikoura whales case

established that section 4 obligations also apply to the other Acts listed in the First

Schedule of the Conservation Act (so far as those principles are not inconsistent with

the particular Act). The same case, decided by the Court of Appeal, said that the

section 4 obligation does not, however, override the primary conservation or

recreation purposes of each piece of legislation.

The department�s role in the Treaty negotiations and settlements process, as an

agency of the Crown with administrative responsibility for areas under claim, is to

advise the Minister of Conservation and the Office of Treaty Settlements and assist in

the resolution of claims.

ACHIEVEMENTS

Initiatives and formal processes have been set up in cooperation with tangata

whenua. They include:

• a protocol for the management of whale strandings in the Ngatiwai rohe

• agreement between the Minister of Conservation and the Tuwharetoa

Maori Trust Board (concerning Lake Taupo)

• Waitomo Caves joint management committee

• agreement regarding the ownership and management of Takapourewa

(Stephens Island)

56

THE WAY AHEAD

Advancing Co-operat ive Conservat ion Managementacross Crown and Maori Land, While Maintaining ClearAccountabi l i ty and Recognising Wider Public Interests

A significant barrier to developing relationships with iwi and hapu is that there is

currently a limited number of opportunities for them to contribute to, and be actively

involved with, co-operative conservation management. This was the conclusion of a

1998 review by Te Puni Kokiri on the department�s internal process for the provision

of services to Maori and its relationship with iwi and hapu in managing conservation

lands. The department is working to establish and improve long term co-operative

management relationships with iwi, including developing a policy and operational

framework for these management relationships - He Anga Whakawhanaungatanga.

There are legal constraints on the department in meeting all the expectations of iwi,

and there are conflicts with some interest groups over matters such as public access,

and the management of concessions.


• Further develop the co-operative conservation management framework He

Anga Whakawhanaungatanga and implement it.

• Treaty redress packages (e.g. the Tainui, Ngai Tahu, and Turangitukua

Deeds of Settlement) including the creation of special legislative

instruments such as topuni, deeds of recognition and statutory

acknowledgements in related legislation (e.g. the Ngai Tahu Claims

Settlement Act 1998).

Key strategies developed by the department with relevance to Maori culture

and heritage include the Historic Heritage Strategy (May 1995) and the

Kaupapa Atawhai Strategy (February 1997).

The department has a specialised position (Kaupapa Atawhai manager) in each

of its conservancies to manage relationships with the tangata whenua of each

rohe. At head office the department has a Tumuaki Kaupapa Atawhai who

advises the Director-General, an Iwi Relationships manager, a Treaty Issues

solicitor, a Treaty Settlements Unit and a Nga Whenua Rahui Fund officer.

The department has recently developed Te Pukenga Atawhai, a

comprehensive competencies-based staff-training programme, in order to

significantly improve the skills of its staff to meet its section 4 responsibilities.

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Faci l i tat ing Access to Natural Resources for CustomaryUse to Sustain Maori Culture and Tradit ion

The customary use of native birds, plants and other traditional materials is essential

for carving, weaving, and rongoa (traditional medicine). The New Zealand Conserva-

tion Authority extensively consulted with Maori and the general public about this

issue and made a series of recommendations to the Minister of Conservation, which

he accepted in October 1999. The Minister directed the department to undertake a

work programme to give effect to the recommendations.


• Implement the proposed work programme to facilitate access to natural re-

sources for customary use to sustain Maori culture and tradition, including the

development of strategic policy, best practice for access to feathers, and changes

to the legislation to allow for lawful ownership of taonga crafted from natural

materials.

Contributing Effect ively to the Set t lement of TreatyClaims within Government Pol icy

Maori continue to assert ownership over conservation resources, and most

conservation areas in the North Island are under claim. In the context of Treaty

negotiations and settlements, there is inevitably a focus on particular conservation

areas and sites because of their high cultural importance to tangata whenua.

Government policy has been that public conservation land is not generally available

for the settlement of Treaty claims, although small discrete areas of special

significance may be returned. The department�s Treaty Settlement Unit represents

the Crown on its negotiating teams with iwi/hapu claimants.

There is resistance from some conservation and recreation groups and the public to

the use of public conservation land and the conservation estate for delivering redress

of Treaty claims. Public access is a particularly sensitive issue. While these issues are

inevitably contentious, the achievement of significant settlements has shown that

there is room within the policy to achieve workable solutions.


• Work with Crown teams on developing deeds of settlement for the group of

recent Crown/iwi heads of agreement, and continue involvement in the Treaty

settlements process generally, with particular recognition of both the

importance of active Maori involvement in conservation management and also

the sensitivities and importance of public access to the network of conservation

areas.

59

DepartmentalCapability

DOC conservation officer, Wayne

Beggs, with tree daisy seedlings at

Paengaroa mainland island.

61

Departmental Capability

The department is recognised internationally as having a conservation focus that

offers more effective and consistent conservation actions than any similar agency

overseas. This is because the department has a primary objective of conservation and

is able to take an integrated approach to conservation management all the way from a

particular site up to the national level. Other agencies overseas are not so fortunate.

They may have mixed production and conservation objectives, be confined to federal,

state or local jurisdictions, or be focused more narrowly on parks, forests, fish or

wildlife alone.

Such a clear focus offers opportunities and challenges for the department. It means

that improvements in effectiveness and efficiency lead directly to significant

conservation benefits, on the ground or in the water.

The department�s role can be described as:

1) the expert manager of natural and historic heritage, providing access to that

heritage, and working with the community in consultation and sometimes

partnership, when this heritage is on lands or waters directly managed by the

department; and

2) helping individuals and groups in the community to conserve and manage their

heritage on lands and waters elsewhere, by providing information and advice.

To do both these roles well requires ongoing improvements in the department�s core

capabilities. The challenges arising from this are set out below.

THE DEPARTMENT OF CONSERVATION'S CORE

CAPABILITIES

Expert Conservation

Management

ASSET MANAGEMENT

CAPABILITY

Conservation Advice

ADVISORY

CAPABILITY

Relationship Management/

Capability (Public Awareness and

Co-operative Management)

Knowledge Management

Capability

62

The department�s key roles are as expert ranger managing protected places and

species and as conservation advisor to the wider community. Both roles are

underpinned by capabilities in knowledge management and relationship

management.

ACHIEVEMENTS

The lessons of the Cave Creek tragedy in 1995 were broadened into an

organisation-wide programme of improvement. This has included:

• Structure: comprehensively restructured, shifting from a matrix structure

to strengthened line management, to ensure quality management,

accountability and integrated conservation management

• Strategy: prepared a Strategic Business Plan, released in January 1998

• Systems: developed and implemented standard operating procedures for

key functions, and introduced the Visitor Asset Management System

• Style: shifted the focus of community relations work to proactive

relationship management (from reactive issues management) at each level

of the organisation.

The 1998 Strategic Business Plan identified priority actions to continue to

improve the department�s capability. Recent progress includes:

• increased focus on a quality and customer-centred culture within the

department

• an annual organisational health check and a system of regular operational

reviews of managers

• a Science Strategy to realign science and research with the Strategic

Business Plan and an Information Services Strategic Plan

• an improved business planning system and a new information technology

system, which has ensured year 2000 readiness, expanded the network to

include all area offices, and provided a significantly upgraded standard

platform and common systems for all staff

• new Department-wide training programmes for ecological skills, Maori

perspectives and leadership skills and a polytech-based trainee staff

programme

• implemention of the Target 20 programme for relationship management to

improve relationships with strategically important organisations.

THE WAY AHEAD

Providing Clear Strategic Direct ion to the Department �sManagers and Staff about Conservat ion Priori t ies

The majority of the targets in the 1998 Strategic Business Plan have now been

achieved. The department is reassessing its medium-term strategic direction by

revising the plan. This includes:

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• reviewing the department�s role in relation to other conservation organisations

and potential functions

• reassessing the requirements of stakeholders

• clarifying national priority outcomes and

• identifying conservation milestones.

By December 1999 the General Management Team will have developed a draft on

these matters to enable an early discussion with the incoming Minister. Depending

on the outcomes of these discussions the revised Strategic Business Plan will be

finalised toward the end of the 1999/2000 financial year.

This timetable links with the department�s participation in a pilot with three other

departments in a new State Services Commission approach to departmental

accountability and assessment of capability requirements.


• Seek direction on the Strategic Business Plan from the incoming Minister and

then complete the plan.

• Actively participate in the State Services Commission pilot of a new approach to

accountability and capability.

Support ing More Effect ive Conservat ion Decis ion-making

It is a great advantage for the department to be able to manage all the natural, historic

and recreational features of each place in an integrated way. In managing places

across the country, the department also delivers on national priorities for natural and

historic heritage and recreation. It employs a range of systems to set priorities for

programmes as diverse as possum control, species recovery and allocation of visitor

facilities.

There are a number of challenges in this work:

• balancing the tensions that sometimes arise between national, local and

community priorities for particular places.

• evaluating the different priorities at a place - is it better from a conservation point

of view to focus on species recovery or weed control or visitor facilities in a

particular valley, or to do a certain amount of each?

• understanding the condition of natural and historic heritage and visitor facilities -

how it is declining or recovering, how effective are the department�s management

actions in responding to this decline?

• identifying which actions will provide the best conservation improvements for the

time and money available.

These are challenges faced by conservation agencies throughout the world. The

department is comparatively well advanced in the progress it is making on these

issues. It is developing tools to help managers clarify the outcomes they seek to

achieve, compare and rank the costs and benefits of different programmes and results

and measure progress toward those outcomes.

64


• Develop improved tools for the management of conservation information to

support decision-making.

• Design a more effective performance measurement system.

• Develop planning tools that shift the focus from conservation outputs (what is

done) to outcomes (what is achieved).

Making Learning and Improvement Part of the BasicWork Pract ices within the Department

It is essential that the department achieves continuous improvements in all aspects of

its work.


• Lift the role of regional offices as advisers on improvements in conservation

delivery.

• Further develop and implement leadership programmes for conservation

managers.

Becoming More Effect ive Conservat ion Advisors

In the past decade the department has focused on conservation advocacy. This has

advanced conservation interests in regional and district plans and conservation plans.

There has also been a cost in declining relations with some rural communities,

foresters and individual farmers particularly as those landowners have come under

stress with declining returns from farming and forestry in the 1990s. The department

believes it may be more effective acting primarily in the roles of gatherer of

conservation information and expert advisor and, only when absolutely required, as

statutory conservation advocate. This will required improved information systems

and different skills to gain the confidence of private landowners.


• Improve information gathering and management to enable easier access by

field staff, private landowners and the wider community.

Maintaining Effect ive Relat ionships with Stakeholdersat Nat ional and Local Levels for Achievement ofConservat ion Outcomes

Recent research and polling commissioned by the department has indicated that:

• most stakeholders and people who use our services strongly support the core

national conservation role of the department for natural heritage and want to be

partners with the department in conservation

• the public rates the department highly as being open, consultative and relatively

good at resolving conservation problems

• the public does not consider that the department is particularly responsive

• and there are some perceived problems with bureaucratic processes and regional

inconsistencies.

65


• Establish more direct relationships with stakeholders and users of our services

and monitor satisfaction, appreciation and understanding of heritage and how

it is viewed by the community.

• Complete a conservation education policy to guide the department�s work to

increase awareness and understanding of conservation and conservation

management.

67

TheUpcomingYear

Kakapo food, coprosma berries,

Maud Island.

69

The Upcoming Year

Annual national events in the upcoming year include:

� World Wetlands Day 2 February Fish and Game New Zealand

� Sea Week 11-19 March Marine Education Society

� Arbor Day 5 June Department of Conservation

and Councils

� World Environment Day 5 June Ministry for the Environment

� Conservation Week 31 July�6 August Department of Conservation

� Clean Up New Zealand 18-24 September Clean Up New Zealand Trust

Week and The Warehouse

There are also many one-off events to mark other conservation achievements. Events

in the upcoming year are likely to include:

• Launch of Trounson Kauri Park interpretation January-February

panels

• Release of kaki (black stilt) chicks, Twizel 17 January

• Opening of Otago Central Rail Trail 19-20 February

(by the Governor-General)

• Launch of Craigieburn Environmental Education March

Centre

(Worldwide Fund for Nature, Department of

Conservation, Canterbury Regional Council,

Christchurch College of Education)

• Egmont National Park Centennial/Opening 21 October

of new North Egmont and Dawson Falls visitor

centres

• Release of little spotted kiwi and North Island (to be confirmed)

robin to Karori Wildlife Sanctuary

• Opening of Emerald Stream Otago skink and (to be confirmed)

giant skink reserve

• Possible handing over ceremonies under the (to be confirmed)

Ngai Tahu Claims Settlement Act 1998.

These events are opportunities for like-minded people to reflect on and celebrate the

achievements of the past. They also revitalise us to keep going in the future. The

Minister of Conservation will be a part of many of these and other events.

70

Back in the office, at the business end of things, there are also other annual events that

you will be closely involved in:

• December Purchase Agreement performance report for the

four months ended 31 October

• February Half-yearly Chief Executive performance report

• April Purchase Agreement performance report for the

eight months ended 28/29 February

• April/May Departmental Forecast Report tabled in the House

• June Purchase Agreement

• June Chief Executive Performance Agreement

• July Estimates tabled in the House

• July Annual Chief Executive performance report for year

ended 30 June

• August Purchase Agreement performance report for year

ended 30 June

• September Non-departmental Output Classes (section 32A)

report tabled in the House

• October Annual report to Parliament tabled in the House or

gazetted

• October Financial review by Transport and Environment

Select Committee

71

Public LandEntrusted toDOC

Looking across Little Lake

Sylvester to Arthur Ranges,

Kahurangi National Park.

75

Terms andDefinitions

Hooker's sea lion female group

sleeping, Enderby Island,

Auckland Islands.

77

Terms and Definitions

Biodiversity Biodiversity is short for biological diversity. It means the

variety of all living things: plants animals and micro-

organisms; the genes they carry, and the land and water

ecosystems which they are a part of.

Conservation boards Nationally, there are 14 conservation boards. Each board

comprises a group of individuals, independent of the

department, appointed by the Government. Legislation

sets out the range of conservation board functions, most of

which are advisory.

Crown as exacerbator This term is used in situations where activity on Crown-

owned land exacerbates problems that an adjoining owner

may be experiencing. A common example is when a

farmer controls possums but they saunter over from the

reserve next door.

Nature Heritage Fund Administered by an independent committee, serviced by

the Department of Conservation which receives an annual

allocation of funds from the Government. The purpose of

the fund is to protect indigenous ecosystems by providing

incentives for voluntary conservation.

New Zealand Coastal The Resource Management Act 1991 established a new

Policy Statement coastal management regime based on a partnership

between the Crown and the community through regional

and local authorities. The policy statement guides local

authorities in their day-to-day management of the coastal

environment.

New Zealand Comprises 13 people appointed by the Minister of

Conservation Authority Conservation. The Authority is the approval agency for

conservation management strategies and national park

management plans. It also provides advice to the Minister

on conservation issues of national importance.

Nga Whenua Rahui Administered by the Nga Whenua Rahui Committee,

serviced by the Department of Conservation which

receives an annual allocation of funds from the

Government. The purpose of the fund is to protect

indigenous forests and associated ecosystems on Maori

land.

Queen Elizabeth the Provides protection to private landowners through

Second National Trust covenants over a variety of open spaces including forests/

forest remnants, wetlands, lakes, coastlines etc. The trust

covers all the legal costs arising from the covenant.

Taxon (taxa) A taxonomic group of any rank, as species, family, class

etc; an organism contained in such a group.

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