Torres Strait Prawn Fishery Export Accreditation

Torres Strait Prawn Fishery Export Accreditation

September 2016

This report has been prepared by AFMA for consideration by the Department of the Environment and Energy in relation to the exemption of the Torres Strait Prawn Fishery from export controls under the Environment Protection and Biodiversity Conservation Act 1999.

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1Introduction

Environmental sustainability of fisheries is a primary goal for all stakeholders and managers. The Department of Environment and Energy strategic assessment process is a key part of the work required to meet fisheries sustainability objectives. All Torres Strait fisheries within the area of Australian jurisdiction and managed under the Torres Strait Fisheries Act 1984(TSF Act) are assessed by the Department of Environment and Energy.

The Torres Strait Prawn Fishery (TSPF) was last declared an approved Wildlife Trade Operation (WTO) under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) on 13March 2013 for a period of three years. An extension has been granted until 4 August 2017. A copy of the letter to AFMA, including conditions and recommendations can be found on the Department of Environment and Energywebsite ( This assessment report for the TSPF has been prepared by the Australian Fisheries Management Authority (AFMA) as part of the Protected Zone Joint Authority’s (PZJA) obligations under the EPBC Act and provides for assessment under the WTO and protected species provisions of the EPBC Act.

Contact details

Ms Lisa CockingMr Paul Ryan

Senior Management OfficerManager

Torres Strait Prawn FisheryEnvironment

AFMAAFMA

Ph: 02 6225 5409Ph: 02 6225 5366

Fax: 02 6225 5500Fax: 02 6225 5446

2Description of the Fishery

The TSPF is a multi-species prawn fishery which operates in the waters between Australia and Papua New Guinea (PNG) (approximately 8,000km² or 20% of the area of the Torres Strait Protected Zone (TSPZ) in the eastern part of the Torres Strait. There are a number of spatial and temporal closures in the fishery to protect sensitive areas, such as spawning sites at important times of year (Figure 1). Brown Tiger Prawn (Penaeus esculentus) and Blue Endeavour Prawn (Metapenaeus endeavouri) are the key target species, with Red Spot King Prawn (Melicertus longistylus) taken as by-product. The TSPF is one of the most valuable commercial fisheries in the Torres Strait, with a GVP of $9.5million in 2014-15.

Prawn harvesting occurs at night, using the otter trawl method. The majority of boats use a quad trawl configuration, which involves towing four trawl nets. The TSPF has restrictions on the type of gear and vessel that can be used, such as restrictions on net length and boat size. There is a mandatory requirement for all nets to be fitted with an approved Turtle Excluder Device (TED) and Bycatch Reduction Device (BRD) (see Fisheries Management Instrument numbers 47, 71, 81 and 82 on the PZJA website for details). The TSPF fishing season commences on 1 March and closes on 1 December each year.

The prawn stocks within the fishery are straddling stocks between PNG and Australian waters. The PNG and Australian Governments cooperate to manage the stocks through annual bilateral fisheries meetings. There is currently no fishing activity undertaken by PNG operators within the PNG and Australian jurisdictions. Australian operators currently only harvest prawns in the Australian jurisdiction.

Within the Australian area of waters there is a limit of 61 Australian boat licences and 9,200 units of fishing capacity. The 9,200 units are shared between PNG and Australia, with 6,867 units allocated to Australian TSPF boat licence holders and 2,333 units reserved for use by PNG, which is in line with the requirements of the Torres Strait Treaty. Units of fishing capacity are converted into an annual use entitlement in the form of fishing days based on the maximum sustainable yield (MSY) for the Tiger Prawn stock. The Total Allowable Effort (TAE) for the TSPF is currently set at 9,200 days for the 2016, 2017 and 2018 seasons. All future TAE limits for the TSPF will be based on the decision rules within the TSPF Harvest Strategy 2011. Historically, PNG has chosen not to use its allocation of days. Approximately 25-35% of the 9,200 days were fished by Australian operators in the 2014 and 2015 fishing seasons.

2.1Protected Zone Joint Authority

The TSPF is managed by the PZJA. The PZJA comprises of the Commonwealth and Queensland ministers responsible for fisheries and the Chair of the Torres Strait Regional Authority.

The TSPF is managed under the TSF Act, the Torres Strait Prawn Fishery Management Plan 2009 (the Plan), otherlegislative instruments and policy. The TSF Act and the Plan provide objectives which are to be pursued in managing the fishery and require a balance of managing fisheries sustainably, cost effectively and for optimum utilisation. In addition to this, the PZJA is required to have regard to the rights and obligations conferred on Australia by the Torres Strait Treaty, in particular the protection of the traditional way of life and livelihood of the Traditional Inhabitants, including the capacity to engage in traditional fishing. Further details of the legislation underpinning the fishery can be found at

3Management

3.1Changes to management arrangements

Season dates

In 2016, the fishing season dates changed to a 1 February season opening (instead of 1 March), extending the season by one month, while the total allowable effort (number of fishing days) for the fishery has remained the same. This measure simply allows fishers to commence fishing earlier in the season.

TSPF Management Plan

In 2015, AFMA and the Torres Strait Prawn Management Advisory Committee (TSPMAC), reviewed the Plan, withthe aim to ensure the provisions of the Plan remain current and accurate, operationally flexible in areas of low risk and provide clarity in dealing with access to the fishery. The majority of amendments are proposed to simplify wording of some provisions, correct drafting errors (including the date of the Plan) and removing other provisions which are no longer applicable or have been replaced by other legislative instruments. The amendments either correct administrative errors from the original draft or remove redundant provisions.

A key proposed amendment is to provide for cancellation of units of fishing capacity in the fishery that are surrendered or for which a levy is not paid.

The proposed changes to the plan are not such that there would bean impact on the sustainability of the fishery or greater level of interaction with the environment.

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Figure 1. Torres Strait Prawn Fishery area, including permanent closures (hashed areas).

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3.2Management and consultative process

In 2015, AFMA took over the responsibilities for placement of traditional inhabitant representatives on the PZJA consultative forums, including the TSPMAC. In the past, representatives were nominated by the TSRA. Traditional inhabitant members are now elected by their peers. There are still four traditional inhabitant members on the committee as well as the fisheries portfolio member from the TSRA Board.

This change was made to improve ownership of the role of representation on the Torres Strait Committees. It is essential that people who undertake the traditional inhabitant roles have expertise and drive, and also carry the respect and confidence of the Torres Strait community. This will ensure that the views and aspirations of Torres Strait Islander and Aboriginal people of the region are well represented and considered in the forums of the PZJA.

This change does not negatively impact, but could improve, sustainability and management of the fishery.

Further detail on the TSPF consultative processes

Consultation in the TSPF takes place largely through the TSPMAC. The TSPMAC is made up of commercial non Traditional Inhabitant industry members, Traditional Inhabitants (i.e. Torres Strait Islanders) and State and Commonwealth Government representatives, who actively participate in the development of management arrangements (including Fisheries Queensland, AFMA and the TSRA). Industry and Traditional Inhabitant members on TSPMAC are representatives of the larger commercial industry and Traditional Inhabitant stakeholder groups. TSPF licence holders are made aware of the consultation processes through the TSPF handbook, including how to voice their views through the TSPMAC industry members. The TSPMAC provides the forum where issues relating to the fishery are discussed, problems identified and possible solutions developed. The TSPMAC advises the PZJA, through the PZJA Standing Committee on management issues for the fishery to assist the PZJA in decision making.

The PZJA Standing Committee is made up of the CEO of AFMA, the Deputy Director General of Fisheries Queensland and the General Manager of the TSRA and considers matters before they are presented to the PZJA.

Working groups are also formed when specialist advice is required, such as the Harvest Strategy Working Group which was used to develop the TSPF Harvest Strategy.

The PZJA receives research advice relevant to the Torres Strait fisheries from the Torres Strait Scientific Advisory Committee (TSSAC). TSSAC is also responsible for identifying information needs and research gaps, developing a strategic research plan, soliciting/reviewing research proposals and reports, reviewing/assessing fisheries stock assessments, and advising on the effective delivery of research results.

The TSSAC, which is comprised of research organisations, fisheries managers, Traditional Inhabitants and industry, also advises the TSPMAC on scientific issues associated with TSPZ fisheries.

3.3Description of cross-jurisdictional management arrangements

The TSPF is a cross-jurisdictional fishery sharing the prawn stock with PNG. The Torres Strait Treaty (the Treaty) was ratified in 1985 and details the sovereignty and maritime boundaries in the area between Australia and PNG. The Treaty establishes the TSPZ and aims to protect the traditional way of life and livelihood of the Traditional Inhabitants of the Torres Strait and adjacent coastal areas of the two countries. Australia and PNG have an obligation to cooperate in the conservation, management and utilisation of the TSPZ fisheries and both countries enjoy sovereign rights within the TSPZ. This includes the right to a share of the commercial harvest of swimming fish and sedentary species on the respective sides of the agreed fisheries and seabed jurisdiction lines.

4Research and Monitoring

4.1Sustainability assessment for trawl bycatch in the TSPF

An alternative bycatch study (to the ERA) was undertaken by Dr Roland Pitcher in 2005 and updated in 2013. This update showed a comparison of bycatch biomass between the two studies.

More information is available under section 8.2 of this report. A full report is available on the PZJA website (Sustainability assessment for trawl bycatch in the TSPF).

Other monitoring programs used to gather information in the TSPF

A comprehensive set of monitoring programs are in place to gather information in the TSPF. These include:

Logbooks

It is mandatory for all Torres Strait prawn operators to complete logbooks. Logbooks collect information on gear design, including TEDs and BRDs. Catch and effort data is also collected and used to monitor the level of harvest and the status of the prawn stocks. There is also a mandatory requirement to record all interactions with Threatened Endangered and Protected species in the logbooks.

There is a requirement for logbooks to be submitted to AFMA within two weeks after returning to port or two weeks after the season closes on 1 December. This information is used to analyse the annual and historical performance of the TSPF. The data analysis includes:

• catch per unit effort;
• total catches throughout the season;
• actual effort; and
• catch and effort trends.

Vessel Monitoring System

It is a licence condition that all vessels have a Vessel Monitoring System (VMS) fitted. VMS data is managed by AFMA and is used to monitor vessel activity and days fished in the fishery. VMS data is primarily used to monitor effort used by individual operators and ensure that the vessels do not fish in restricted areas of the TSPF. The PZJA also utilises this system to obtain up to date information on the total number of daysfished during the season.

Observer Data

Observer coverage in the TSPF is set at 2.6% of actual effort that occurs in the fishery each year. The primary objective of the TSPF observer program is to collect fishery dependent scientific data, predominately on bycatch and TEP species. In addition to this, biological information on commercial catch and by-product species and information on species of significance to the traditional sector is collected.

5Catch data

5.1Catch and effort Data in the TSPF

Following a general downward trend from 2001 fishing effort stabilised at around 2,000 nights from 2012-2014(Table 1). The 2011 fishing season was the year of lowest fishing effort and catches since 1989. In 2015, effort increased slightly to 2,832 nights. The decline in fishing effort after 2001 was mainly driven by increasing fuel prices and decreasing product value, making it less profitable to fish in this area, which is distant from the nearest primary port of Cairns.

This effort has been achieved by a minimal number of boats (approximately 8-20 of a possible 61).

Table 1. Yearly totals since the 2005 effort reduction (t = tonnes).

Year / Hours Trawled / Nights Fished / VMS
(d) / All prawn (t) / Tiger (t) / Endeavour (t) / King (t)
2005 / 63,300 / 5,966 / 6,957 / 1,311 / 651 / 594 / 51
2006 / 47,273 / 4,407 / 4,654 / 1,331 / 602 / 672 / 45
2007 / 51,398 / 4,832 / 5,218 / 1,137 / 582 / 503 / 47
2008 / 37,023 / 3,453 / 4,127 / 907 / 439 / 418 / 48
2009 / 19,435 / 2,165 / 2,599 / 547 / 348 / 178 / 17
2010 / 20,480 / 1,879 / 2,309 / 465 / 344 / 110 / 9
2011 / 14,613 / 1,309 / 1,663 / 283 / 204 / 74 / 4
2012 / 23,337 / 2,081 / 2,310 / 517 / 398 / 115 / 3
2013 / 22,061 / 1,993 / 2,240 / 528 / 420 / 103 / 4
2014 / 21,983 / 1,954 / 2,203 / 393 / 315 / 76 / 3
2015 / 31,361 / 2,832 / 3,263 / 716 / 542 / 161 / 11
Average (2010-2014) / 20,495 / 1,843 / 2,145 / 437 / 336 / 96 / 5
Average (1991-2001) / 103,678 / 9,781 / 1,806 / 659 / 1,087 / 56
Emsy / 9,197 / MSY / 676 / 1,044

Table 2. Total catch of target, byproduct and bycatch species in the TSPF for the 2013to 2015 seasons.

Species / 2013 catch (kg) / 2014 Catch (kg) / 2015 catch (kg)
Brown Tiger Prawns / 420,007 / 314,518 / 559,795
King Prawns / 4,146 / 2,776 / 6,840
Endeavour prawns / 103,410 / 75,817 / 166,642
Bugs - Shovel nosed and slipper lobsters / 19,864 / 17,286 / 26,154
Cuttlefish (mixed) / 54 / 113 / 531
Moreton Bay bug / 1,855 / 729 / 1,800
Octopus / 100 / 104 / 45
Prawns (mixed) / 285 / 333 / 2470
Squids / 34 / 131 / 282

5.2Catches of TSPF target species in other fisheries

Tiger Prawns, Endeavour Prawns and King Prawns are also caught in the Northern Prawn Fishery (NPF).Taggingstudies,indicate that these are different stocks and the homerange ofthese species is thought to be small and mixing is unlikely.

6Status of target stock

The current stock assessment was undertaken in 2004 and reviewed in 2006 using catch and effort data. At the time of the assessment, the stock level was estimated to be at 74% virgin biomass (B74).

Until the stock assessment is updated, it isn’t possible to calculate an up to date estimate of the current biomass for the tiger prawn stock. However, given the persistent low level of effort in the TSPF since the estimate was developed and the high catch rates, PZJA agencies are confident the stocks remain at or above the same level of B74. As such, there is nosustainability concern for the prawn species.

PZJA agencies will continue to monitor catch rates as a stock indicator through the TSPF Harvest Strategy. If triggers within the Harvest Strategy are reached, PZJA agencies will reconsider updating the stock assessment.

7Interactions with protected species

It is mandatory for all TSPF vessels to have BRDs and TEDs fitted in their nets. Apart from sea snakes, there is a low level ofinteraction with protected species. A summary of interactions reported through the logbooks is detailed in Table 3.

Table 3. Summary of protected species interactions recorded in logbooks for TSPF vessels for the 2013-2015 seasons.

Species common name / Life status / Total 2013 / Total 2014 / Total 2015
Sawfish / Alive / 1 / 1 / 0
Sawfish / dead / 0 / 0 / 1
Sawfish total / Total / 1 / 1 / 1
Turtles / Alive / 5 / 5 / 7
Frigatebird / Alive / 0 / 0 / 1
Seahorses & pipefishes / Dead / 20 / 2 / 6
Alive / 1 / 0 / 1
Seahorses & pipefishes Total / 21 / 2 / 8
Seasnakes / Alive / 753 / 819 / 391
Dead / 18 / 17 / 23
Injured / 0 / 7 / 2
Unknown / 433 / 494 / 257
Seasnakes Total / 1204 / 1337 / 673

The majority of interactions with protected species in the TSPF occur with species of seasnakes. However there is a high survival rate and most individuals are discarded alive. PZJA agencies continue to monitor BRDs and is open to improving design where possible. The turtle excluder device requirements for the fishery are in the process of being updated to ensure the TEDs are aligned with the best practice international standards.

8Impacts of the fishery on the ecosystem in which it operates

8.1Results of any ecological risk assessments

The Level 1 Scale Intensity Consequence Analysis (SICA) for the TSPF covered a total of 612 species:ten target, 14 by-product, 476 discard and 112 protected species occurring within the area of the fishery. Target, by-product, discard and protected species were all found to be at moderate or higher risk to the impacts of commercial fishing operations; however no higher level assessment has been completed for this fishery.

Due to a paucity of life history parameters for those species identified as occurring in this fishery the next level of Ecological Risk Assessment (productivity susceptibility analysis (PSA)) is not likely to produce particularly useful results as it is expected there will be a high number of ‘false positive’ outcomes. An alternative is to instead use other risk assessment methods or expert advice to select indicator species or species groups on which to focus management responses.

The risk of not completing a higher level ERA is considered low at this time, particularly given the low levels of effort in the fishery. When effort triggers within the Harvest Strategy are reached, PZJA agencies will reconsider undertaking the higher level ERA assessments.

The following species were identified as being the highest risk species encountered in the fishery area by Stobutzki et al.(2001):

• Spot Fin Waspfish (Paracentropogan vespa);
• Oriental Searobin (Dactyloptena orientalis);
• Short Finned Waspfish (Apistops Caloundra);
• Velvet Fish (Paraplotoactis trachyderma); and
• Threadfin (Polydactlyus sheridani).

Unfortunately none of these species were identified in trawl surveys undertaken in 2004–2006 (Turnbull et al. 2007), howeverclosely related species were reported. If effort in the TSPF increases, and triggers under the harvest strategy are reached, the TSPMAC will consider undertaking further ERA analysis. When the ERA process is progressed, the TSPMAC will need to consider which species list is most representative of the fishery and will constitute the priority species on which to focus management attention for this fishery.