AFMA Submission – EPBC Act Reassessment
Southern Bluefin Tuna Fishery
April2016
This report has been prepared by AFMA for consideration by the Department of Environmentin relation to the export approval of the Southern Bluefin Tuna Fishery under the Environment Protection and BiodiversityConservation Act 1999 (EPBC Act).
Contents
Contents
Introduction
1. Description of the Fishery
1.1 Species biology
1.2 Target and by-product species
1.3 Management arrangements
1.4 International context
1.5 Fishing methods
1.6 Fishing areas
1.7 Allocation between sectors
1.8 Governing legislation/fishing authority
1.9 Status of export approval under the Environment Protection and Biodiversity Conservation Act 1999
2. Socio-economic environment
2.1 Value of the fishery
2.2 Economic assessment
2.3 Quality assurance and control
3. Management
3.1 Changes to management
3.2 Performance of the fishery against objectives, performance indicators and performance measures
3.3 Compliance risks present in the fishery and actions taken to reduce these risks
3.4 Consultation processes
3.5 Description of cross-jurisdictional management arrangements
3.6 Compliance with threat abatement plans, recovery plans and domestic and international agreements
4. Research and monitoring
4.1 Research
4.2 Monitoring programs used to gather information on the fishery
4.3 Observer program
5. Catch data
5.1 Total catch of target species
5.2 Take of SBT in other fisheries
5.3 Total catch of byproduct and bycatch species
5.4 Catch by other sectors
5.6 Spatial issues/trends
6. Status of target stock
6.1 Stock status
6.2 Stock assessments and recovery strategies
7. Interactions with protected species
7.1 Frequency and nature of interactions
7.2 Management action taken to reduce interactions
8. Impacts of the fishery on the ecosystem
8.1 Results of the Ecological Risk Assessments
8.2 Nature of impacts on the ecosystem
8.3 Management action taken to reduce impacts
8.4 Ecological Risk Assessment and Management Review
9. Progress in implementation of recommendations and conditions resulting from the previous assessment of the fishery
10. Attachments
Attachment A - Conditions on the approved Wildlife Trade Operation, July 2013
Attachment B – Level 2 SBT Fishery Ecological Risk Assessment
Attachment C – SBT Fishery Residual Risk Assessment
Attachment D – SBT Fishery Level Three Rapid Qualitative Risk Assessment
Attachment E – SBT Fishery Ecological Risk Management strategy
Introduction
This assessment covers fishing methods in the Southern Bluefin Tuna Fishery (the SBT Fishery) for all methods permitted under the Southern Bluefin Tuna Fishery Management Plan 1995.
The SBTFishery was originally declared an approved Wildlife Trade Operation (WTO) under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) on 10 November 2004.
Since then, the SBTF has been re-approved under the EPBC Act three times with the current WTO accreditation valid until 22 July 2016.
A copy of the letter to AFMA, including conditions and recommendations can be found at:
commonwealth/southern-bluefin
1. Description of the Fishery
A full description of the Southern Bluefin Tuna Fishery (SBT fishery) is provided in the table below.
Principal Species: / Southern Bluefin Tuna (Thunnus maccoyii)No of SFR Owners at start of the SBT fishing Season / 2012/13: 93
2013/14:91
2014/15:89
Estimated catch (fishing season)and value (financial year) / 2012/13 / TAC : 4,713 tonnes
Catch[1]: 4,539 tonnes
GVP: $38.4 million
Farm gate value: $154 million
2013/14 / TAC : 5,193 tonnes
Catch: 5,420 tonnes
GVP: $39,500,000
Farm gate value: $125 million
2014/15 / TAC: 5,665 tonnes
Catch:5629 tonnes
GVP: N/A
Farm gate value:N/A
Fishing Season: / The SBT fishing season runs from 1 December to 30 November in the following year.
The majority of fishing by purse seine for grow out ranching[2] occurs from December – March. Longlining for SBT occurs primarily in winter months off southern NSW by boats operating concurrently in the Eastern Tuna and Billfish Fishery.
Main markets: / Japan. Small markets in USA, EU and Republic of Korea.
Fishing techniques: / In 2014–15 approximatly ninety per cent of the Australian catch of SBT was taken by purse seine off SA for ranch operations. These are towed alive back to static grow out pontoons off Port Lincoln and grown out for up to 6 months before being harvested and exported, predominantly to Japan. SBT is also caught by longline vessels operating in southern Australian waters. They are also taken in small amounts by pole and line, and trolling.
Stock Status: / The 2014 assessment suggested that the SBT stock remains at a very low state estimated to be 9% of the initial spawning stock biomass, and below the level to produce maximum sustainable yield (MSY). However, there has been some improvement since the 2011 stock assessment and fishing mortality is below the level associated with MSY. The Biomass of age 10+ SBT relative to the initial stock is estimated to be 7% which is up from the estimate of 5% in 2011.
Summary of indicators
There were mixed signals from the indicators in 2014, with no issues of concern. The overall results can be summarised as follows:
- The 2014 scientific aerial survey index of relative juvenile (2-4 year old) abundance is the highest value seen in the time series. Between 2010 and 2014 the index has shown more variation but with an increasing trend. The commercial SAPUE index also increased from 2013 to 2014, but to a lesser extent. The trolling survey index for age 1 declined slightly between 2013 and 2014.
- Longline CPUE for the Japanese fleet for ages 6 and 7 increased steadily from 2007 to 2012 but decreased in 2013. The CPUE index values for ages 8-11 decreased slightly and gradually from 2008 to 2011 but have increased in more recent years. The CPUE indices for age 12+ has showed a decline from 2008 to 2010 and then fluctuated around a low level afterward; this is expected given the weak recruitment from 1999 to 2002.
Management Plan: / The Southern Bluefin Tuna Management Plan 1995(the SBT Plan) is the instrument through which Australia implements the resolutions of the Commission for the Conservation of Southern Bluefin Tuna (CCSBT) in the domestic fishery.
TheSBT Planunderwent amendments in 2012/13to accommodate changes to monitoring arrangements within the fishery and to allow AFMA the ability to implement decisions of the CCSBT such as undercatch arrangements.
Management Method: / The Southern Bluefin Tuna Fishery (SBTF) is managed through a system of output controls in the form of individually transferrable quotas which are allocated as Statutory Fishing Rights (SFRs) under the SBT Plan. Prior to the commencement of each season (1 December to 30 November), AFMA determines a TAC of SBT for the domestic fishery based upon Australia’s national allocation from the CCSBT. Each SFR entitles the holder to receive an equal portion of the TAC set by AFMA for this period.
International Management: / Australia is a member of the CCSBT,which is responsible for the international management of the global SBT stock. The objectives of the CCSBT are to ensure through appropriate management, the conservation and optimum utilisation of the global SBT fishery. Management arrangements agreed at the CCSBT are implemented in the domestic fishery through the SBT Plan and associated legislative instruments.
The CCSBT member countries are engaged in a Scientific Research Program (SRP). The core components of the SRP are catch characterisation, CPUE standardisation, scientific observers, tagging and recruitment monitoring.
At the Eighteenth Annual Extended Commission Meeting of the CCSBT in 2011, a Management Procedure was adopted that outlines a rebuilding strategy for the SBT stock. The Management Procedure will be used to guide the setting of the SBT global TAC for 2012 and beyond, according to the following parameters:
- The Management Procedure is tuned to a 70% probability of rebuilding the stock to the interim rebuilding target reference point of 20% of the original spawning stock biomass by 2035;
- The minimum TAC change (increase or decrease) is 100 tonnes;
- The maximum TAC change (increase or decrease) is 3,000 tonnes; and
- The TAC will be set for three-year periods, subject to paragraph 7 of the Resolution on Adoption ofa Management Procedure (PDF 33Kb).
Ecological Risk Management / The Ecological Risk Management (ERM) strategyfor the SBT fishery outlines management measures to monitor and mitigate risk to all aspects of the marine ecosystem.
The ERM strategy has been developed through the Ecological Risk Management Framework that involves a hierarchical ecological risk assessment (ERA) process.This process progresses from a comprehensive but largely qualitative analysis at Level 1, to a full quantitative analysis at Level 3. Results of the full ERA analysis identified no species at high risk in the SBT fishery. The priority for the ERM strategy is to maintain monitoring of the fishery and respond to any interactions with protected species that occur. Further details of the ERM framework are included in section 8.
A separate bycatch and discards work plan has been developed under the ETBF ERM strategy for all Australian pelagic longline fisheries, which includes mitigation measures relevant to longlining for SBT.
Upcoming Major Management Issues: / Australia will continue to collect vital data through the SBT aerial survey to support the Management Procedure (MP)adopted in 2011. This includes providing relevant data to the CCSBT for consideration by the Extended Scientific Committee and the Extended Commission.
CCSBT has agreed that in the longer term, 2018 and beyond, the preferred method to estimate recruitment to the SBT stock will be gene-tagging. The first stage of this project has recently been completed with the tagging of 2 year old fish off South Australia.
CCSBT has agreed that there is a need to ensure that there remains a robust science-based MP in place to guide TAC setting. To ensure the current MP is able to adjust to changes in recruitment monitoring processes and work being undertaken in relation to unaccounted mortality on a new MP will be developed by 2019.
The TAC for the next quota block, 2018-20, will be calculated in 2016. The MP will use data from a number of indicators such as the aerial survey and Japanese longline catch per unit effort to calculate the figure.
A full stock assessment is scheduled to be conducted in 2017.
1.1 Species biology
Southern BluefinTuna (Thunnus maccoyii) are found in the southern hemisphere,mainly in waters between 30° and 50° S, but only rarely in the eastern Pacific. Theonly known spawning area is in the Indian Ocean, south-east of Java, Indonesia.Spawning takes place from September to April in warm waters south of Java andjuvenile SBT migrate south down the west coast of Australia. During the summermonths (December-April), they tend to congregate near the surface in the coastalwaters off the southern coast of Australia and spend their winters in deeper, temperateoceanic waters. Results from recaptured conventional and archival tags show thatyoung SBT migrate seasonally between the south coast of Australia and the centralIndian Ocean. After age 5 SBT are seldom found in near shore surface waters, andtheir distribution extends over the southern circumpolar area throughout the Pacific,Indian and Atlantic Oceans.
SBT can attain a length of over 2m and a weight of over 200kg. Direct ageing usingotoliths indicates that a significant number of fish larger than 160cm are older than 25years, and the maximum age obtained from otolith readings has been 42 years.Analysis of tag returns and otoliths indicate that, in comparison with the 1960s,growth rate has increased since about 1980 as the stock has been reduced. There issome uncertainty about the size and age when SBT mature, but available data indicatethat SBT do not mature younger than 8 years (155cm fork length), and perhaps as oldas 15 years. SBT exhibit age-specific natural mortality, with M being higher foryoung fish and lower for old fish, increasing again prior to senescence.Given that SBT have only one known spawning ground, and that no morphologicaldifferences have been found between fish from different areas, SBT are considered toconstitute a single stock for management purposes.
1.2 Target and by-product species
The Southern Bluefin Tuna Management Plan 1995 establishes a framework for management of Australia’s domestic Southern Bluefin Tuna fishery.
The SBT Plan does not allow for the take of any species other than SBT. If an SBT SFR holder incidentally captures another species when fishing for SBT, they must hold the relevant concession that permits the take of that species.
1.3 Management arrangements
The SBTF is managed under the Fisheries Management Act 1991 and the Southern Bluefin Tuna Fishery Management Plan 1995. These legislative instruments have a supporting framework of regulations, SFR conditions, fishing permits and directions.
The Southern Bluefin Tuna Fishery Management Plan 1995 outlines provisions for output controls in the form of individually transferable quotas which are allocated as statutory fishing rights (SFRs). Prior to the commencement of each season (1 December to 30 November) AFMA determines a total allowable catch (TAC) of SBT for the domestic fishery based upon Australia’s national allocation from the CCSBT. Each SFR entitles the holder to receive an equal portion of the TAC set by AFMA for this period.
Operators’ catch against their quota holdings is monitored through logbooks and catch disposal documents and a paper trail of fish receivers. These records are provided to AFMA within legislative timeframes to enable AFMA to monitor catch against quota holdings.
The current management mechanisms within the Plan and supporting legislative instruments are summarised in the following table.
Table1. The structure of the SBT Fishery Management Plan and supporting legislative instruments
Management Plan / Supporting instrumentsSouthern Bluefin Fishery Management Plan 1995
- Objectives
- Bycatch Action Plan requirements
- Reference points
- Applicability
- SFRs and entitlement to fish in the fishery
- Take in excess of quota
- Overcatch provisions
- Entitlements for fishing by a foreign boat, for research purposes and for species other than SBT
- Maximum number of SFRs
- Conditions for registration of eligibility for SFR rights
- Granting of SFRs
- Determination of national catch allocation and provisional catch allocation
- Determination of actual live weight, interim live weight and provisional live weight value of SFRs
- Overcatch circumstances and breaches
- Details of SBT taken to be sent to AFMA
- Verified count of fish taken by purse seine
- Live release of fish
- Restricted overcatch
- Verified count substitution
- Signed extract of the Register of SFRs
- Obligations on holders of SFRs
-Carry onboard a signed extract of the register
-Cannot fish under the SBT Plan if operating a charter trip
-Provide biological, economic and technical data if required to do so
-Report all unloads of SBT outside of Australia
-Notify AFMA if fishing on the high seas
-Abide by restrictions on transhipment of dead SBT (specified in the SBT Plan)
-Must comply with all applicable legislative instruments (specified in the SBT Plan)
-Take all reasonable measures to minimise bycatch
- - Obligations of permit holders and foreign holders of foreign fishing licenses
- Expiry of an SFR
- Sets the season for the fishery
- Requirements for disposal of SBT to Ranching operations
- Conversion of processed weight to live weight
- Application of the Act to the high seas
- Administration of Fisheries Concessions
- Standard conditions for fishing concessions
- Eligible boats
- Requirement to have VMS
- Requirement to carry observers
- Disposal of fish to fish receiver
- Catch limits (where relevant)
- Impacts on the marine environment
- Reporting interactions with protected organisms if injured or killed
- Determination of Form and Content of Fisheries Logbook for the Southern Bluefin Tuna Fishery
- Southern Bluefin Tuna Australia’s National Catch Allocation Determination
- Southern Bluefin Tuna Overcatch and Undercatch Determination
- Southern Bluefin Tuna Fishery Transfer Weighing determination
- Southern Bluefin Tuna Fishery Actual Live Weight Value of a Statutory Fishing Right Determination
- None
Quota SFR Conditions
- Area of waters and area limitation
- Critical incidents notification for tow cages
- Comply with the procedure for taking SBT for the weight sample
- Comply with the measures in Schedule 3a of the Fisheries Management Regulations 2009.
- Emergency contact requirements
- Agent obligations
- Temporary order obligations
- Direction obligations
- Navigating in closed zones
- Area of waters and area limitation
- Document onboard obligation
- Purposes limitations
- Gear limitations
- Reporting obligations
- Critical incidents notification for tow cages
- Comply with the measures in Schedule 3a of the Fisheries Management Regulations 2009.
- Agent obligations
- Temporary order obligations
1.4 International context
SBT is a highly migratory species fished throughout its range. Japan, Australia, NewZealand, the Republic of Korea, the Fishing Entity of Taiwan, South Africa and Indonesia account for the large majority of the catch.
In the mid-1980s it was apparent that the SBT stock was at risk and management andconservation was required. From 1985 the three main nations fishing for SBT; Japan,Australia and New Zealand, began to apply quotas as a management and conservation measure. In 1994, these voluntary arrangements were formalised with the signing of the Convention for the Conservation of Southern Bluefin Tuna (the Convention). Since then the Commission for the Conservation of Southern Bluefin Tuna (CCSBT) has managed the fish stock internationally. Australia is a founding member of the CCSBT and is active in this Regional Fishery Management Organisation (RFMO).Australia’s international obligations under the Convention are implemented through the Southern Bluefin Tuna Management Plan 1995.