19 The Crescent, PO Box 1262, Invercargill 9840, NEW ZEALAND Telephone: 03 218 2546 Facsimile: 03 214 4285 Email: [email protected] Web: www.bonischenvironmental.co.nz Aquaculture zoning in the Southland region Phase 1: Satellite view of where and what type of aquaculture may be possible Report prepared by Bonisch Environmental for Environmental Southland Report prepared by: John Engel, Manager, Bonisch Environmental Reviewed by: Kylie Galbraith, Senior Resource Planner, Environment Southland Date: 22 November 2013 Enabling sustainable use of natural resources Bonisch Consultants Limited trading as Bonisch Environmental Freephone: 0800 802 546 Contents 1. Summary of information from interviews 1.1 1.2 1.3 1.4 Industry perspective Cultural perspective Regulatory perspective Economic perspective 2. Satellite view summary 2.1 How the Southland coastal marine was broken into broad areas for reporting purposes 2.2 Marine farming possibilities in the sounds adjacent to Fiordland 2.3 Marine farming possibilities along the South Coast between Port Craig to Waiparau Head inshore areas, generally described as the coastal marine area within 2 km of mean high water springs 2.4 Marine farming possibilities in Stewart Island enclosed waters and embayments. 2.5 Marine farming possibilities in open coastal waters from Awarua Point to Waiparau, out to 12 NM 3. Conclusions 3.1 Species 3.2 Locations 4. Parties involved with scoping exercise 4.1 Parties interviewed 4.2 Parties not interviewed to date 4.3 Parties invited to be part of scoping exercise but no response received to date 1. Summary of Information from Interviews These notes are to accompany the attached tables in Section 2 of this report. They summarise the findings from the meetings and interviews with marine farmers, regulators, Iwi and other stakeholders. 1.1 Industry Perspective Only two areas of development for the immediate future were identified during the interviews with marine farmers and Aquaculture New Zealand. These are: 1. making finfish farming, in particular, salmon more sustainable and being able to better remedy or mitigate the adverse effects of that type of farming; and 2. establishing commercial production of Bluff Dredge Oysters. Longer term, the industry as a whole would like to develop more space and increase national production, but most of the operators currently farming in Big Glory Bay at Stewart Island are unlikely to initiate that expansion. As a larger corporate, Sanford Bluff have a wider, national perspective but locally are primarily focussing on salmon and greenshell mussels, while trialling the Bluff Dredge Oyster. At least one operator indicated that he would farm blue mussels, scallops and/or rock lobster if the market was there at a suitable price, and the know-how was available to farm the species, particularly the latter two. Nationally, some work has been carried out on alternative species, but the current focus has come back to the “big three”, i.e. mussels, salmon and pacific oysters. Pacific oysters are not present in the Southland region, however, the Bluff Dredge Oysters does occur naturally. There is a desire to keep the local variety of dredge oysters pure and distinct from other species so all marine farmers want to ensure Pacific oysters are not introduced to this region. Current focus therefore for the Southland region are the “big three”, i.e. mussels, salmon and Bluff Dredge Oysters. In regards to where to farm, in the short term (0 – 5 years), no operator appears to be looking seriously at any area other than Big Glory Bay and Paterson Inlet at Stewart Island, with Bluff Harbour as a support area for producing Bluff Dredge Oyster spat. Other areas are, at best, a medium term (10 – 15 years) prospect. While areas such as Lords River and Port Adventure at Stewart Island were identified by some as potential areas for development, others who had fished in these areas believed that there were few, if any, areas that would be sufficiently sheltered from severe easterly or south easterly storms. While such storms were uncommon (possibly 10-15 year return period), they had the capability to wipe out long line or cage farming operations. To a large extent, the industry is market driven, i.e. it will only turn to new species if firstly, existing products are limited in terms of further development, and secondly, there is a market for a new product at the right price. If necessary, the farming techniques for new species can be developed but it would depend on investment. 3 1.2 Cultural Perspective Apart from traditional food gathering areas, particularly those designated a mataitai reserve, Iwi had few concerns about marine farming as an activity. The matter of Kaitiakitanga is an issue in any use of natural resources, and it is noted that statutory acknowledgements include the Fiordland and the Foveaux Strait/Rakiura coastal areas. There are two mataitai reserves in the Southland coastal marine area, one in Paterson Inlet, Stewart Island, and the other along the southern part of Oreti Beach for a distance of approximately 20 km and out to 1 km offshore. Iwi also have an interest as a potential investor in marine farming and are able to take up an option on 20% of any new area authorised for marine farming. Because there has not been any increase in marine farming space since this provision was enacted, the situation has not arisen but it is possible that Iwi will invest in marine farming in the future. 1.3 Regulatory Perspective In the Regional Coastal Plan for Southland 2013 (RCP), marine farming is currently prohibited in the internal waters of both Fiordland and most of Stewart Island (except Big Glory Bay and the Salmon Farming Refuge Zone), Awarua Bay east of the Tiwai causeway, and marine reserves. In all other areas, marine farming is a discretionary activity, with the exception of the Bluff Port Zone where it is a noncomplying activity. Changing the status of marine farming in the prohibited areas may raise significant resource management and conservation issues, regardless of what is being farmed. The staff from the Department of Conservation indicated that they have particular concerns about marine farming in the internal waters of Fiordland and Paterson Inlet, and general concerns about marine farming adjacent to national parks. Within the RCP, there are a number of particularly sensitive ecological features, referred to as “china shops”, that have been identified as worthy of stronger protection. There are also 10 marine reserves, the location of which are generally separate to the china shops, although there is some overlap. In regard to the undue adverse effects (UAE) test carried out by the Ministry of Primary Industry (MPI), MPI staff were not aware of any significant issues in this region. In any particular case, its consideration would be in relation to the effect of marine farming on commercial, recreational and customary fishing. There are a limited number of areas that may need to be avoided, e.g. the Bluff Dredge Oyster beds, but these were reasonably well known and not believed to be areas of interest to marine farmers. The Fiordland Marine Guardians have had very little discussion on marine farming in the Fiordland Marine Area (as defined in the Fiordland (Te Moana o Atawhenua) Marine Management Act 2005), the area over which the group provides advice and 4 makes recommendations to management agencies and Ministers who exercise functions in the area, and has no formal policy on the subject. However, individuals are believed to have an open mind on marine farming in Fiordland, but believe that if it ever were to occur in this area, it would have a very high threshold to cross in terms of potential adverse effects. Although some suggestion was made about areas that may be suitable, the Guardians, at this time, neither support nor oppose marine farming in Fiordland. 1.4 Economic Perspective There have been a number of reports about the economic benefits of marine farming. The potential for aquaculture to outperform agriculture on a per hectare basis has been well documented but the industry in New Zealand is severely limited by a lack of space, primarily due to regulatory constraints. Most of the suitable areas are sheltered waters or embayments on New Zealand’s coastline, and those locations are often in areas adjacent to national parks and reserves, or in marine reserves. Salmon, mussels and pacific oysters are all exported but the high value product is salmon – on a dollars per hectare basis, it is over 35 times higher than its closest rival, kiwifruit, which is followed by mussels then Pacific oysters. Salmon is over 200 times better performing than dairy farming. Because farming Bluff Dredge Oysters is just beginning, there is no comparable data for this type of marine farming. Developers wish to differentiate Bluff Dredge Oysters from other oyster species but it is too soon to know if that difference will result in a premium price. Other countries of similar or smaller size produce far more salmon than New Zealand due to greater areas being farmed, but overseas, it is Atlantic salmon that is farmed, as opposed to the King (Chinook) salmon that is farmed here. Some economic analysis of the salmon industry here has pointed to significant risks in the New Zealand context (see Investment opportunities in the New Zealand Salmon industry – Coriolis, May 2012). The risks include the size of the New Zealand industry, competition with the larger Atlantic salmon industry, the introduction of a disease into the New Zealand species, and regulatory and environmental constraints. The economic benefits of marine farming for Southland, including farming of the lower value products like mussels, are significant but seriously limited by suitable areas. While this satellite view has identified some areas that may be suitable for development, there seem to be few, if any, that are free of any limitations – the closest would be offshore farming. The most significant constraint is the location of the areas adjacent to conservation areas, followed by exposure to heavy seas and wave action. Even using technology and different types of farming that get below the effects of water movement at offshore locations, the ability to service the sites can be restricted. 5 2. Satellite view summary 2.1 How the Southland coastal marine was broken into broad areas for reporting purposes The region has been broken into four broad areas for the satellite view, to provide a satellite view summary for each area. The broad areas used for this satellite view are as follows: Fiordland fiords South Coast between Port Craig to Waiparau Head inshore areas, generally described as the coastal marine area within 2 km of mean high water springs Stewart Island enclosed waters and embayments Open coastal waters from Awarua Point to Waiparau, out to 12 NM The satellite view summary tables for each of the broad areas (which follow in Sections 2.2 - 2.5) accompany the notes in Section 1 of this report. The tables summarise the findings from the meetings and interviews with marine farmers, regulators, Iwi and other stakeholders. 6 Figure 1: Broad areas used for satellite view of marine farming possibilities 7 Figure 2: Fiordland areas used for satellite view of marine farming possibilities (shaded deep blue colour) 8 Figure 3: South Coast between Port Craig to Waiparau Head inshore areas used for satellite view of marine farming possibilities (shaded green colour) 9 Figure 4: Stewart Island areas used for satellite view of marine farming possibilities (shaded red colour) 10 Figure 5: Open coastal water areas used for satellite view of marine farming possibilities (shaded deep blue colour) 11 2.2 Marine farming possibilities in the sounds adjacent to Fiordland Indication of potential locations It seems that many of the fiords are suited to most forms of marine farming but the sensitivity of the environment and logistical issues have meant that the area has not been seriously considered by any person. The locations identified have open vistas, which may reduce the visual impact and have some scope for consideration. Potential areas identified for investigation: Preservation Inlet (excluding Long Sound as is a marine reserve) Chalky Inlet Industry perspective Cultural perspective Regulatory perspective Economic perspective Little interest expressed. While there are undoubtedly areas that would be physically suited to various types of marine farming, the distance and the sensitivity of the environment mean that more certainty would be required before industry members would consider investing in this area. Customary/heritage sites, most of which are on land or the foreshore, and traditional food gathering areas, are the matters of most concern to Iwi. Matters of Kaitiakitanga are relevant to the use and development of resources in all areas. Currently, under the Regional Coastal Plan, marine farming is a prohibited activity within the fiords. Only DOC expressed total opposition to marine farming in the coastal environment adjacent to Fiordland. Others did not express opposition but noted that there would be a very high threshold to cross to be even considered in this area, which includes 10 marine reserves. Operating and managing a farm in this location would be more expensive than other areas. Viability would therefore be marginal or negative. Only a very low impact, high value product would be considered. It would also only be considered if other areas were not available. Because of its remoteness, there seem to be few culturally sensitive areas on the Fiordland shoreline. The main regulatory issues in this area are resource management and conservation rather than fisheries, although there are commercial fisherman that utilise these areas for shelter, berthage and storage. Long Sound was suggested by Venture Southland staff from a desk top review of a topographical map. Its designation as a marine reserve was overlooked. The fiords are used for other commercial activities, in particularly tourism activities such as scenic day trips, charters, and visits by cruise ships. Preservation/Chalky Inlet were suggested as the only areas worthy of consideration because of their wide expanses of water, unlike other parts of Fiordland that are narrow and confined. The seascape is such that the visual impact of marine farming may be less significant in these areas. Other conservation issues are the 12 Indication of potential locations Industry perspective Cultural perspective Regulatory perspective Economic perspective presence of : “china shops”, i.e. areas of significant habitat and marine ecology that are particularly sensitive to development; and marine mammals, particularly bottlenose dolphins that are known to be resident in and around Milford Sound, Doubtful Sound and Dusky Sound. 13 2.3 Marine farming possibilities along the South Coast between Port Craig to Waiparau Head inshore areas, generally described as the coastal marine area within 2 km of mean high water springs Indication of potential locations Potential areas identified for investigation: Te Wae Wae Bay in the vicinity of Port Craig Riverton, off shore from Howells Point to Taramea Bay Bluff Harbour Waikawa Harbour. Industry perspective Cultural perspective Regulatory perspective Economic perspective Apart from Bluff Harbour, only some passing interest in these areas. Any marine farming activity would need to be the type that would be able to cope with exposure to heavy seas that would inevitably occur from time to time. Marine farmers are open to other possibilities, such as enhancement of some species in this area, e.g. surf clams, gooey duck, paua, crayfish. As for the Fiordland area, the main concern is around customary sites, most of which are on land or the foreshore, and traditional food gathering areas are of most concern to Iwi. The food gathering areas are mostly on the foreshore (e.g. toheroa on the southern half of Oreti Beach) and in estuarine areas (New River Estuary and Jacobs River Estuary). Currently, under the Regional Coastal Plan, marine farming is a discretionary activity in most of these areas except for Awarua Bay (prohibited) and Bluff Port Zone (non-complying). The area along the south coast is generally accessible but limited by sea conditions. There are few, if any, areas that are suitable for the types of marine farming that are currently practiced but there may be opportunities for different types and methods. Bluff Harbour is only marginally suited to marine farming but it is accessible, close to infrastructure, and has value for harvesting and growing spat for on-growing elsewhere. Main limitation is product quality due to water quality (bacteria, sediment) and ability to grow due to food supply but also the strong currents in some parts. There is a mataitai reserve on Oreti Beach that extends from The Waimatuku River mouth to the southern end of the beach, and 1 km out from the high tide level. Matters of Kaitiakitanga are relevant to the use and development of resources in all areas. Very little Conservation land is located along the southern coast. The most significant areas are Awarua Bay and adjacent to Waituna Lagoon, neither of which are of significant interest for marine farmers for known species and farming methodologies. Marine mammals are common in Foveaux Strait. Hectors Dolphins are known to be resident in and around Porpoise Bay. There are two marine mammal sanctuaries in this area, namely: Te Wae Wae Bay (extending from Sand Hill Point to Pahia Point); and Catlins (extending from Bushy Point to Three Brothers Point, and joined by an east-west line starting 5 nautical miles However, areas that are sheltered from most westerly conditions are generally exposed to easterly conditions, and the risk of damage, or even total destruction of a farm is high. The ability to work on site regularly during the year would also be limited. Where expensive structures would be required, and/or sophisticated technology, only a high value product would be viable. However, simpler systems, for example, cages resting on the sea bed, may be viable for certain species. 14 Indication of potential locations Industry perspective Cultural perspective Regulatory perspective Economic perspective offshore from the latter). The sanctuaries constrain seismic/acoustic activities in these areas. 15 2.4 Marine farming possibilities in Stewart Island enclosed waters and embayments Indication of potential locations Potential areas identified for investigation: Port William Big Glory Bay Paterson Inlet Port Adventure Tikotatahi Bay Lords River Port Pegasus Industry perspective Cultural perspective Regulatory perspective Economic perspective The main interest is in optimising production in Big Glory Bay and extending into Paterson Inlet, of which there were only certain areas that might be suitable. Big Glory Bay is suited to mussels and, from recent experience, also suited to Bluff Dredge Oysters. Growth rates within Big Glory Bay are variable – some sites have product maturing 12-18 months later than the other better performed sites. The main issue for Iwi is ensuring the integrity of the mataitai reserve in Paterson Inlet, which covers most of it apart from Big Glory Bay. It is believed that marine farming can be carried out in a mataitai but it does require the management committee's approval, which will depend on the potential impact on customary fishing activity. At present, the potential areas identified, apart from Big Glory Bay, the salmon refuge area in Paterson Inlet, and Tikotatahi Bay, have marine farming as a prohibited activity in the Regional Coastal Plan. Marine farming in Big Glory Bay already has economic benefit from production of salmon and mussels. Bluff Dredge oysters are being grown and sold in a relatively small way but production is expected to increase, possibly at the expense of mussels. Big Glory Bay has limited potential for additional growth and any expansion in the industry is likely to happen in other areas. The main issue in Big Glory Bay is that farmed shellfish will not release spat (reason unknown). Bluff Dredge Oysters did release spat when first introduced to the Big Glory Bay but amount rapidly declined in subsequent years. This bay also has a finite feed supply, evidenced by the decline in growth rates as more marine farms became established. Salmon are farmed successfully but the Big Glory Bay is not optimal in regard to the ability to manage adverse effects from deposition on the seabed. While finfish and filter feeders are believed to complement each other, there is little scientific information to In the Regional Coastal Plan, there is a salmon farm refuge area identified in Paterson Inlet, in an area that is part of the Mataitai reserve. No concern was raised about the refuge area. Iwi do have a commercial interest in marine farming, and where it can be of benefit, it may actually support the activity. DOC staff spoken to were very opposed to marine farming in Paterson Inlet due to potential impacts on water quality and the seabed. The inlet has a number of special features that should be protected from the effects of development. There is a marine reserve located near the head of the inlet around Ulva Island. The DOC staff view was that any areas that are adjacent to Rakiura National Park are considered to be sensitive and inappropriate for development. It was acknowledged that there may be some form of marine farming that has a low impact that could occur but generally the view was that these high value, undeveloped areas should be protected. There is economic benefit from the existing marine farming activity in Big Glory Bay. If marine farming of the Bluff Dredge Oyster is successful, there is an expectation that it will be a higher value product. It is believed there may also be some scope for an additional site or sites within Big Glory Bay. The capital cost of marine farming outside of Big Gory Bay will increase the further marine farms are situation away from areas that service the industry. The other primary source of income from these areas is tourism. Cruise ships visit Paterson Inlet and other parts of Stewart 16 Indication of potential locations Industry perspective document the extent of the benefit. There are believed to be better sites for finfish farming in Paterson Inlet. Cultural perspective Regulatory perspective Economic perspective Island, and charter trips operate out of Oban. Other areas are generally further away and, in some cases, more exposed. Port Pegasus has the best protection but it is furthest away from areas that service the industry. 17 2.5 Marine farming possibilities in open coastal waters from Awarua Point to Waiparau, out to 12 NM Indication of potential locations No specific potential areas identified for investigation but believed to only be appropriate where not directly exposed to weather and seas from the south western quadrant, or to excessive current. Industry perspective Cultural perspective Regulatory perspective Economic perspective Recognised as an opportunity mainly for long line shellfish farming and finfish farming but uncertain in the southern environment. Regarded as expensive and probably only open to larger corporate entities. No cultural issues were identified in regard to offshore marine farming. Currently, under the Regional Coastal Plan, marine farming is a discretionary activity in offshore areas out to 12 nautical miles. The biggest challenge for this type of marine farming is technical rather than regulatory but there are issues such as navigation and marine mammal migration. Because of the issues associated with finfish farming in sheltered waters (water quality, benthic effects, visual impact, and occupation of space), offshore marine farming is believed to be a better option for the future. Technology is being developed and farms have been established in the northern hemisphere. Uncertain for the southern coastal waters due to higher average wave heights, currents through Foveaux Strait and around Stewart Island, and exposure to storms coming out of the southern ocean. Even if the marine farm structures and fish stock could be established, servicing it would be limited by sea conditions. The capital cost of this type of marine farming is high. With finfish marine farming, the marine farmer is not restricted to a particular geographical setting and is likely to choose a site that has the best characteristics, which may not be in the Southland region. However, there are advantages such as less vessel movements, water quality, and possibly better growing conditions for some species. 18 3. Conclusions 3.1 Species The following table summarises those species that are either currently being farmed, or for which there is some degree of interest by marine farmers. There are a number of other species that could be developed but they have not been researched locally to any degree. Some species such as gooey duck and surf clams were mentioned but more in the context of enhancement and/or harvesting rather than actual farming. Seaweeds are also seen as a possibility but any development is more likely to be in response to a demand for certain products, either the seaweed itself or by-products obtained from the seaweed. Species Comment Currently farmed King (Chinook) salmon High value product but has the greatest environmental impact. Can be farmed in Big Glory Bay at Stewart Island but serious limitations. More space in alternate areas required. Greenshell mussel Common product, relatively easily farmed and, for smaller operators, provides income for supporting development of other species, and diversification. Bluff Dredge Oyster Relatively new product but potentially high value, particularly if it can be differentiated from other oyster products on the international market. Still at an early stage of development. Other Species Rock lobster At least one farmer has investigated farming rock lobster and would like to develop it further. Could be a cage type operation, either on or over the seabed. Feeding required, but there are techniques for “on demand” feeding that reduce, if not eliminate, feed losses. Scallops An option but currently no suitably priced market for farmed scallops. Would still need development on suitable farming techniques. Paua An option for either farming or enhancement work. Have been trialled but there does not appear to have been any recent attempts to farm paua. 19 Species Porphyra Columbina (nori) Undaria 3.2 Comment This product has been grown in the past on LI512 in Bluff Harbour, and the current owners of the site expressed an interest in growing it again in the future. This seaweed is believed to have a market but it appears that there would be more interest in harvesting it from areas where it has become established rather than growing it on farms in this region. Locations The information gained about possible locations for marine farming was for general areas rather than specific locations. The highest priority for marine farmers was access to Paterson Inlet at Stewart Island, primarily for the expansion of existing farming activities rather than for new species, although access would create options and opportunities. Conversely, this location is one that Department of Conservation places a high priority on protecting. The Department’s concerns about protecting areas with high natural values and sensitive ecosystems appears to cover all of the most suitable areas for farming activity, i.e. Fiordland and Paterson Inlet, Port Pegasus and Port Adventure at Stewart Island. There are other areas but these seem to be less attractive to existing marine farmers and can still have conservations issues, e.g. marine mammals in offshore areas. No additional areas that are suitable for marine farming were identified that do not seem to have medium to high constraints due to resource management, conservation and/or site issues. 4. Parties involved with scoping exercise 4.1 Parties interviewed The following parties were interviewed as part of the scoping exercise to collate the satellite view of what aquaculture may be possible where in the Southland region: Southern Marine Farms – John Cockroft Sanford Ltd – Tommy Foggo, Warren Crighton and Philip Nicolson Gorton’s Fisheries Ltd – Ivan Gorton Jeffrey Walker EEC Ltd – Alister Eade Maass Mussels Ltd – Jim Barrett 20 4.2 Schofield Sea Farms Ltd – Peter Schofield Rodney Clark Te Ao Marama Inc. – Michael Skerrett Ministry for Primary Industries – Michael Nielson (Aquaculture Growth and Innovation) and Christine Bowden (Spatial Allocation Team) Department of Conservation – Greg Funnell and Anna Cameron Fiordland Marine Guardians – Chairman Malcolm Lawson Venture Southland – Alistair Adam and Steve Canny Aquaculture New Zealand – Rebecca Clarkson NIWA – Ken Grange Cawthron – David Taylor and Nigel Keeley Parties not interviewed to date The following parties have confirmed they wish to be involved with the scoping exercise to collate the satellite view of what aquaculture may be possible where in the Southland region, however, to date interviews have not occurred due. If interviews completed in the near future this report will be updated accordingly: 4.3 David Bragg Ricky Topi Foveaux Oysters Ltd – Gordon Wardrop Te Runanga o Ngai Tahu – Nigel Scott Parties invited to be part of scoping exercise but no response received to date The following parties were contacted as part of the scoping exercise to collate the satellite view of what aquaculture may be possible where in the Southland region, however, no response has been received to date from these parties. If contact is made by these parties and interviews completed in the near future this report will be updated accordingly: Greg Fife Campbelltown Seafoods Ltd – Sonny Johnson Department of Marine Science at University of Otago – Mike Barker 21
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