Constraints to effective comanagement of New Zealand's customary fisheries: experiences of the East Otago Taiāpure

Abstract

Centralization of fisheries management within large-scale, colonial governing bodies can remove access and management rights of Indigenous communities and deplete marine resources through a mismatch in bioecological and managerial scales. Management of pāua (blackfoot abalone, Haliotis iris) in Aotearoa New Zealand exemplifies this transition from small-scale fisheries management by tangata whenua (local Indigenous people with historical claim to the land, Māori) to central government regulation and subsequent overexploitation. Comanagement strategies have the potential to address degradation of biological and cultural diversity by returning management to local scales and authority to local people. New Zealand's customary fisheries management legislation aims to facilitate such a devolution of management back to tangata whenua through the establishment of Taiāpure Local Fisheries and Mātaitai Reserves. However, local management systems can remain constrained by the wider governance structures that encompass them. These constraints are discussed in relation to a management proposal for pāua harvesting made by the East Otago Taiāpure Management Committee. The proposal aimed to return fishing practices to a customary method, providing greater protection for declining pāua populations while allowing a small harvest to continue. After a long and protracted application process, central government did not support the proposed regulation. This opposition demonstrated many of the constraints that local management committees face as they endeavor to operate within the confines of broader legal frameworks: conflicting worldviews, inequitable power sharing, perceived inferiority of Indigenous customs, requirements for conventional science, and navigation of bureaucratic processes. Insights are also drawn from another small-scale abalone fishery (ormer, Haliotis tuberculata) in the Channel Islands, for which the desired regulation has been in place for over three decades.