Draft National Plan of Action for Minimising the Incidental Catch of Seabirds in Australian Capture Fisheries
Draft National Plan of Actionfor Minimising the Incidental Catch of Seabirds in Australian Capture Fisheries
© Commonwealth of Australia 2017
Ownership of intellectual property rights
Unless otherwise noted, copyright (and any other intellectual property rights, if any) in this publication is owned by the Commonwealth of Australia (referred to as the Commonwealth).
Creative Commons licence
All material in this publication is licensed under a Creative Commons Attribution 3.0 Australia Licence, save for content supplied by third parties, logos and the Commonwealth Coat of Arms.
Creative Commons Attribution 3.0 Australia Licence is a standard form licence agreement that allows you to copy, distribute, transmit and adapt this publication provided you attribute the work. See the summary of the licence terms or the full licence terms.
Inquiries about the licence and any use of this document should be emailed to .
Cataloguing data
This publication (and any material sourced from it) should be attributed as: Department of Agriculture and Water Resources 2017, National Plan of Action for Minimising the Incidental Catch of Seabirds in Australian Capture Fisheries, Canberra. CCBY3.0.
ISBN XXX-X-XXXXX-XXX-X (printed)
ISBN XXX-X-XXXXX-XXX-X (online)
This publication is available at agriculture.gov.au/XXXXXX.
Department of Agriculture and Water Resources
Postal address GPO Box 858 Canberra ACT 2601
Telephone 1800 900 090
Web agriculture.gov.au
The Australian Government acting through the Department of Agriculture and Water Resources has exercised due care and skill in preparing and compiling the information and data in this publication. Notwithstanding, the Department of Agriculture and Water Resources, its employees and advisers disclaim all liability, including liability for negligence and for any loss, damage, injury, expense or cost incurred by any person as a result of accessing, using or relying upon any of the information or data in this publication to the maximum extent permitted by law.
Acknowledgements
PLACE HOLDER
Contents
Glossary
Introduction
Scope
Rationale
Seabirds at risk of incidental catch
Australia’s capture fisheries
Objectives
Framework for achieving objectives of NPOA–Seabirds
Objective 1 Understand the extent of incidental catch ofseabirds
Objective 2 Have best practice seabird bycatch mitigation in capturefisheries
Objective 3 Promote development of innovative mitigation procedures and technologies that are feasible, effective and efficient
Objective 4 Increase awareness and understanding of the incidental catch of seabirds and best practice mitigation
Objective 5 Promote adoption of effective mitigation measures in regional fisheries and conservation bodies
Implementation
Government subcommittee
Roles and responsibilities
Resourcing
Evaluation and review
Appendix A: Data categories for best practice risk assessments
Appendix B: Minimum standards for collecting seabird interaction data
Appendix C: Principles for recreational fishing codes of practice
Principle 1 Reduce seabird attraction to fishing activity
Principle 2 Use responsible fishing practices
Principle 3 Promote best practice hook removal
Principle 4 Promote best practice seabird handling
Appendix D: Summary of best practice approaches for longline, trawl, set net and recreational fisheries
Appendix E: Implementation actiontables
Objective 1
Objective 2
Objective 3
Objective 4
Objective 5
References
Glossary
Term / DefinitionACAP / Agreement on the Conservation of Albatrosses and Petrels
AFMA / Australian Fisheries Management Authority
bycatch / Species that physically interact with fishing vessels and/or fishing gear which are not usually retained by commercial fishers and do not make a contribution to the economic value of the fishery.
capture fishery / refers to all kinds of harvesting of naturally occurring living fish resources, including industrial, small-scale and recreational.
Ecologically Sustainable Development / the principles of ecologically sustainable development as defined under the Environment and Biosecurity Conservation Act 1999 (EPBC Act) and include:
(a) decision-making processes should effectively integrate both long-term and short-term economic, environmental, social and equitable considerations;
(b) if there are threats of serious or irreversible environmental damage, lack of full scientific certainty should not be used as a reason for postponing measures to prevent environmental degradation;
(c) the principle of inter-generational equity—that the present generation should ensure that the health, diversity and productivity of the environment is maintained or enhanced for the benefit of future generations;
(d) the conservation of biological diversity and ecological integrity should be a fundamental consideration in decision-making; and
(e) improved valuation, pricing and incentive mechanisms should be promoted.
incidental catch / See ‘bycatch’
interaction / Any physical contact between a person and a protected species. This includes all catching (hooked, netted, entangled) and collisions with individuals of these species
IPOA–Seabirds / International Plan of Action for reducing Incidental Catch of Seabirds in Longline Fisheries
NPOA–Seabirds / National Plan of Action for minimising the incidental catch of seabirds in Australian capture fisheries
offal (marine) / discarded waste from processing fish (including, among other things, discarded fish and other organisms and unused baits) discarded food and food scraps
Seabird / A species of the class Aves that frequents coastal waters and the open ocean: gulls; pelicans; gannets; cormorants; albatrosses; petrels; shearwaters; etc.
TAP–Seabirds / Threat Abatement Plan for the Incidental Catch (or Bycatch) of Seabirds During Oceanic Longline Fishing Operations
Department of Agriculture and Water Resources
1
Draft National Plan of Action for Minimising the Incidental Catch of Seabirds in Australian Capture Fisheries
Introduction
Fishing can represent a substantial threat to some seabird populations. Most seabirds are primarily surface feeders, taking their prey from the top few metres of the water column (Harper, Croxall & Cooper 1985). Many species are at-sea scavengers, preying on dead fish, squid and other marine life found floating on the surface. Scavenging seabirds supplement their diet by feeding on discards from vessels and baited hooks, and from fisheries catch as it is being hauled (Baker et al. 2002).
The negative effects of fisheries practices occur most often when fishing and seabird foraging behaviour overlap (Alexander, Robertson & Gales 1997; Baker, Gales & Hamilton 2002; Birdlife International 1995; Croxall 1998; Croxall et al. 2012; Gales 1998). The incidental catch of seabirds in capture fisheries has been an issue of international concern since the 1980s (Brothers 1991; Gales 1998). Examples of the many studies highlighting the number of seabirds killed annually by fishing operations include Anderson et al. 2011; Brothers 1991; Brothers, Gales & Reid 1998; Gales 1998; Zydelis, Small & French 2013.
In 1999 the Food and Agriculture Organization of the United Nations (FAO) adopted the International Plan of Action for Reducing Incidental catch of Seabirds in Longline Fisheries (IPOA–Seabirds). IPOA–Seabirds is a voluntary instrument within the framework of the FAO Code of Conduct for Responsible Fisheries that sets out principles and international standards of behaviour for responsible fishing practices. To support implementation of IPOA–Seabirds, in 2009 the FAO developed best practice guidelines to reduce incidental catch of seabirds in capture fisheries (Box 1). These covered interactions between seabirds and all types of fishing gear used by industrial, artisanal and traditional fisheries. The guidelines recognised that seabird mortalities resulting from trawl and gillnet fisheries were less documented but were becoming a global problem.
Australia undertakes activities to manage incidental catch of seabirds. Following release of IPOA–Seabirds in 1999, Australia prepared an assessment report about reducing incidental catch of seabirds in longline fisheries (Commonwealth of Australia 2003). The report provided an updated assessment on the extent and nature of incidental catch of seabirds in Australian longline fisheries. It concluded that the Threat Abatement Plan for the Incidental Catch (or bycatch) of Seabirds During Oceanic Longline Fishing Operations (TAP–Seabirds) was largely fulfilling the role of a national plan but only for longline fisheries. National assessments of seabird bycatch in Australian fisheries undertaken in 2003 and 2008 (Baker & Finley 2010; Commonwealth of Australia 2003) recommended that reporting be improved to better understand seabird interactions across all capture fisheries. They also recommended the development of a National Plan of Action for Minimising the Incidental Catch of Seabirds in Australian Capture Fisheries (NPOA–Seabirds) that would promote national coordination and action to better understand and mitigate impacts of fishing activities on seabirds.
Since the release of the IPOA-Seabirds, Australia has updated its TAP–Seabirds (twice, in 2006 and 2014) and become a signatory to the international Agreement on the Conservation of Albatrosses and Petrels (ACAP) in 2001, which coordinates international activity to mitigate known threats to these bird populations. ACAP was developed under the Convention on the Conservation of Migratory Species of Wild Animals. The latest version of TAP–Seabirds incorporates ACAP mitigation methods, including line weighting strategies, use of bird-scaring lines, retention of offal during line setting and night setting (in certain instances).
Over the decade to 2017, the Australian Fisheries Management Authority (AFMA) has worked with industry to mitigate impacts of fishing activity on seabirds including:
- fishers in the Great Australian Bight Trawl and Commonwealth Trawl sectors of the Southern and Eastern Shark and Scalefish Fishery are to follow
seabird management plans introduced in 2011 and tailored to individual fishing boats
mitigation measures that the concession holder has agreed to implement to reduce the risk of seabird interactions
- demersal longline fishers
must not discharge fish offal while setting and bringing in lines
must use a tori line device when setting gear
- fishers must use measures such as brickle curtains to scare seabirds away when bringing lines in and use weights to make sure baited hooks sink quickly to a depth that birds are unable to dive to
- trawl fishers must use warp deflectors (pinkie buoys) that sit alongside the trawl gear as a visual deterrent and a physical barrier between birds and fishing gear; recent research shows that pinkies reduce seabird interactions with warp wires by 75 per cent.
Industry is trialling other innovative ways to reduce seabird interactions, including water sprayers and bafflers.
Box 1 FAO Best practices to reduce incidental catch of seabirds in capture fisheries
1)Address incidental catch of seabirds in all capture fisheries (BPTG1)2)Advocate seabird bycatch mitigation in regional fisheries and conservation bodies (BPTG2)
3)Identify extent of seabird bycatch in capture fisheries (BPTG3)
4)Implement mitigation measures (BPTG4)
5)Conduct mitigation research and development(BPTG5)
6)Provide education, training and outreach (BPTG6)
7)Conduct independent monitoring (BPTG7)
8)Establish objectives to avoid and minimise incidental catch of seabirds (BPTG8)
9)Implement monitoring and reporting arrangements (BPTG9)
BPTGBest practices to reduce incidental catch of seabirds in capture fisheries.
Source: Food and Agriculture Organization of the United Nations
Scope
NPOA–Seabirds is seeks to contribute towards achieving and maintaining a favourable conservation status of seabirds (Box 2) by providing acomprehensive and consistent approachto reducing the impact of fishing on seabirds. The scope of this plan includes:
- all species of birds (Aves) that occur naturally in Australian marine areas, including migratory and threatened seabird species listed under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act)
- all commercial, recreational and other relevant capture fisheries
- all waters under the jurisdiction of Commonwealth, state and Northern Territory fisheries
- all fishing undertaken by Australian-flagged fishing vessels on the high seas, including areas governed by regional fisheries and conservation bodies.
NPOA–Seabirds does not include actions to achieve and maintain a favourable conservation status of seabirds by reducing threats at their breeding sites or by addressing any other relevant threats. These issues are more appropriately dealt with through complementary measures such as TAP–Seabirds and the National Recovery Plan for Threatened Albatrosses and Giant Petrels.
Box 2 Favourable conservation status
Conservation status means the sum of the influences acting on seabird species that may affect their long-term distribution and abundance. Conservation status is considered favourable when these conditions are met:- population dynamics data indicate that the species is maintaining itself on a long-term basis
- the range of the species is neither currently being reduced nor likely to be reduced on a long-term basis
- sufficient habit exists, and will continue to exist in the foreseeable future, to maintain the population of the species on a long-term basis
- the distribution and abundance of the species approach historic coverage and levels to the extent that potentially suitable ecosystems exist and are consistent with wise wildlife management.
Rationale
NPOA–Seabirds outlines actions to avoid or minimise the death or injury of seabirds across all capture fisheries in Australia. It provides directions for collecting information about seabird interactions. Commonwealth fisheries generally operate beyond three nautical miles of coastal baselines to the 200 nautical mile limit of the Australian Exclusive Economic Zone. State and Northern Territory-managed fisheries generally operate within three nautical miles of the coastal baselines. Under offshore constitutional settlement arrangements, as appropriate, jurisdiction for specific fisheries may be vested in the Commonwealth, the state or Northern Territory, or the fishery may be managed jointly. Australian capture fisheries use methods that have the potential to interact with seabirds—longline, trawl, gillnet, purse-seine, dropline, and pot, set net and trap.
Seabirds at risk of incidental catch
This plan aims to include all seabird species in Australia. The conservation status of seabird species varies considerably. However all seabirds are covered, including threatened albatrosses and petrels, which are among the most critically endangered bird species in the world (IUCN 2016). Seabird species differ in their susceptibility to fishing gear or practices and the risks of incidental catch differ depending onthe foraging behaviour of each species. For example, some seabird species are responsible for primary foraging attacks during fishing operations but others are responsible for secondary attacks. NPOA–Seabirds considers the conservation status of a species, its susceptibility to fishing and the spatial and temporal overlap of the population with fisheries.
Australia’s capture fisheries
All capture fisheries that are likely to have incidental capture of seabirds should be considered when implementing NPOA–Seabirds. Also relevant to all capture fisheries is the injury or death of seabirds due to lost, discarded or abandoned fishing gear.
Commercial fisheries use various fishing methods, such as longlines, gillnets and trawls (Bull 2007; Løkkeborg 2011). Seabirds get entangled or hooked in fishing gear, resulting in injury and death. Seabirds are attracted to fish scraps and unused baits (offal) when these are discarded by fishing vessels or accessible during setting and hauling of fishing gear or when the gear is in the water. The incidental catch of seabirds generally occurs during setting and hauling, when baits or nets are close to the surface.
Recreational fishers also capture seabirds incidentally (Campbell 2013; McPhee et al. 2002). Recreational fishing activities are widespread—in estuaries, along coastlines and in coastal and offshore waters—increasing the likelihood of seabird interactions. These activities are especially widespread along Australia’s east coast, and are expected to increase as coastal communities continue to expand and develop.
Based on the value of exports, Australia’s strengths in food production are in raw and moderately processed products. Australia is also particularly successful at producing the key growth commodities of the Asian Century such as beef, grains and dairy products (Australian Bureau of Statistics 2015). These strengths in production build on Australia’s advantages, including land availability, a stable business environment and a highly educated workforce. Our geographic location makes it easier for our businesses to work with Asian nations by, for example, reducing transport costs.
Commercial longline fisheries
The TAP–Seabird has successfully reduced the impact of longline fishing on seabird species. Several Commonwealth fisheries have reduced incidental seabird bycatch rates to below the maximum permissible level set by the TAP–Seabirds (either 0.01 or 0.05 birds per 1,000 hooks depending on the fishery) (Department of the Environment 2014).
However, the 2008 national assessment of the extent of seabird bycatch in longline fisheries highlighted a lack of reliable data on seabird interactions with fishers outside the Commonwealth jurisdiction (Baker & Finley 2010). NPOA–Seabirds outlines actions—such as improved data collection—to enable fisheries managers to record any seabird interaction. Improved data collection will provide a better understanding of the impacts of fishing on seabirds and help ensure consistency in management approaches and reporting by jurisdictions.
Commercial trawl fisheries
Early reports of seabird mortalities in trawl fisheries emerged from New Zealand in the 1990s (Bartle 1991). From 2000 onwards, increased reporting from trawl and other fisheries indicated that such mortalities were more widespread, extending as far as the Falkland and Kerguelen islands and the coast of Argentina (González-Zevallos & Yorio 2006; Sullivan 2006, Reid & Bugoni 2006; Weimerskirch, Capdeville & Duhamel 2000).
Until recently, the impact of trawl fisheries in Australia has not been a focus of research and mitigation. This is due to the difficulty of observing interactions and subsequent mortalities. Seabird mortalities were first reported in Australian trawl fisheries around Heard and McDonald islands, where factory trawlers were targeting Patagonian toothfish. AFMA became aware of interactions between seabirds and fishing gear on inshore wet-boat trawlers in the Southern and Eastern Scalefish and Shark Fishery in late 2009. Seabirds are now recognised as a priority for the management of bycatch in Commonwealth trawl fisheries.