Tokelau loses key fisheries access as New Zealand takes over management - report

Tokelau is scrambling to reverse a decision that has removed it from a major Pacific fisheries scheme.

Tokelau has been formally removed from the Parties to the Nauru Agreement (PNA), the Pacific body that manages the world’s largest sustainable tuna fishery, in a move that puts a major portion of the territory’s government revenue at risk.

The PNA's core membership remains limited to eight sovereign Pacific nations: the Federated States of Micronesia, Kiribati, Marshall Islands, Nauru, Palau, Papua New Guinea, Solomon Islands and Tuvalu.

Vanuatu is not a full member but has instead entered into a separate operational arrangement with the group.

The Tokelau government has confirmed to RNZ Pacific that it is no longer part of the grouping, which oversees access to the lucrative Vessel Day Scheme (VDS), where fishing nations sell access days to commercial tuna fleets operating in their waters.

The change means Tokelau has also lost access to the VDS, a system that has provided a significant source of income for the small Pacific territory of around 1600 people.

RNZ Pacific understands Vanuatu has taken up Tokelau’s former place within the agreement.

The VDS allows Pacific nations to sell fishing days to foreign fleets and generates hundreds of millions of US dollars across the region each year. For Tokelau, fisheries revenue is a critical part of its economy, with regional estimates suggesting the sector accounts for more than 80 per cent of non-aid government income.

New Zealand, which administers Tokelau, has confirmed it is backing efforts to have the territory reinstated into the scheme.

The Vessel Day Scheme allows Pacific nations to sell fishing days to commercial tuna fleets operating in their waters and generates hundreds of millions of dollars annually across the region. Photo/Pacific Community

“New Zealand understands from Tokelau that its participation in the PNA Vessel Day Scheme was terminated in February 2026," MFAT said.

"We also understand that the Government of Tokelau is trying to reverse this decision as a matter of priority. New Zealand stands ready to support Tokelau.”

But regional documents seen by Pacific Newsroom suggest tensions behind the decision, with minutes from a recent PNA meeting indicating difficulties in continuing normal arrangements with Tokelau following changes in fisheries management responsibility.

The documents also note that Tokelau had previously been given increased autonomy in managing its fisheries, with a longer-term goal of supporting economic independence.

However, they state that New Zealand has now taken a more direct role, with Tokelau reportedly unable to operate under previous arrangements.

New Zealand has disputed suggestions of a full takeover of fisheries management.

“There has been no material change to the management of Tokelau’s exclusive economic zone (EEZ) and offshore fisheries,” MFAT said.

“While New Zealand remains responsible for Tokelau’s EEZ under international law, Tokelau has consistently managed the day-to-day operation of its offshore fisheries within the EEZ. This has not changed.”

The disruption comes as Tokelau officials push to restore access to the scheme and recover a key source of government funding.

According to Pacific Community assessments, Tokelau’s economy is highly reliant on external revenue streams, with limited domestic production capacity due to its small land area and geographic isolation.

“Tokelau has limited natural resources and agricultural capacity. As a result, economic development opportunities are constrained, and local production is sufficient only to meet basic needs,” an MFAT country profile notes.

The PNA meeting minutes also recorded concern among members about difficulties in fisheries dealings with Tokelau following the changes, including challenges in trading fishing days under the scheme.

Outgoing Ulu o Tokelau (head of government) Esera Fofo Tuisano, second from right, shakes hands with his successor Alapati Pita Tavite during the inauguration in March. Tavite is leading efforts to restore the territory's participation in the Vessel Day Scheme after its removal from the regional fisheries arrangement threatened a key source of government revenue. Photo/Supplied

Despite this, officials noted regret at Tokelau’s removal but said limited options existed given its status as a non-self-governing territory under New Zealand administration.

Tokelau officials have told PNA parties that New Zealand’s position “was not likely to change”, meaning the territory could no longer operate under its previous system.

The disruption comes as Tokelau officials push to protect a key source of government revenue.

On 1 June, New Zealand Foreign Minister Winston Peters met Tokelau leaders in Sāmoa, marking what he described as a significant year in the relationship, with 2026 marking the centenary of New Zealand’s administration of Tokelau.

Posting on X, Peters said: “We are proud to stand beside Tokelau as its primary partner… a responsibility to which we remain seriously committed.”

New Zealand Foreign Minister Winston Peters met Tokelau leaders in Sāmoa this month as concerns grow over the territory's exclusion from the Vessel Day Scheme and the future of its fisheries revenue. Photo/PMN News/Ala Vailala

The issue was raised during recent regional discussions in Manila, where members acknowledged the situation but signalled limited ability to intervene directly.

The shift leaves Tokelau facing an uncertain path back into the scheme that has long underpinned its fisheries revenue, while officials continue efforts to secure reinstatement.

PMN News has approached the Government of Tokelau for further comment. At the time of publication, it had not publicly commented on its removal from the PNA or the Vessel Day Scheme.