ASSESSMENT REPORT TO THE DEPARTMENT OF THE ENVIRONMENT

Small Pelagic Fishery

July 2015

This report has been prepared by the Australian Fisheries Management Authority for consideration by the Department of the Environment in relation to the accreditation of the Small Pelagic Fishery under the Environment Protection and Biodiversity Conservation Act 1999.

Contents1. INTRODUCTION...............................................................................................32. DESCRIPTION OF THE FISHERY................................................................3

2.1. Fishing area...................................................................................................32.2. Fishing gear and method.............................................................................52.3. Target species................................................................................................62.4. Allocation between sectors...........................................................................62.5. Governing legislation/fishing authority......................................................62.6. Changes to management arrangements.....................................................72.7. Status of export approval/accreditation under the EPBC Act.................8

3. MANAGEMENT.................................................................................................83.1. Management arrangements.........................................................................83.2. SPF Management Plan.................................................................................93.3. Consultation processes.................................................................................93.4. Harvest Strategy.........................................................................................103.5. Harvest Strategy review.............................................................................103.6. Performance of the fishery........................................................................123.7. Description of cross-jurisdictional management arrangements............12

4. RESEARCH AND MONITORING................................................................134.1. Research undertaken in the SPF...............................................................134.2. Monitoring programs.................................................................................16

5. CATCH AND EFFORT....................................................................................165.1. Total catch of target species......................................................................165.2. Bycatch........................................................................................................18

6. STATUS OF TARGET STOCKS....................................................................206.1. Resource concerns......................................................................................206.2. Results of recent stock assessments..........................................................20

7. INTERACTIONS WITH PROTECTED SPECIES......................................208. IMPACTS OF THE FISHERY ON THE ECOSYSTEM.............................219. PROGRESS IN IMPLEMENTING FISHERY ASSESSMENT

CONDITIONS AND RECOMMENDATIONS..............................................2310. REFERENCES..................................................................................................26

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1. IntroductionThis report details changes in the Commonwealth Small Pelagic Fishery (SPF) since the Annual Report to the Department of the Environment: Small Pelagic Fishery 2013 was provided to the Department of the Environment on 20 January 2014, up until 30 June 2015. It includes management responses to recommendations made as part of Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) assessments, and how management arrangements address the Guidelines for Assessing the Ecological Sustainability of Commercial Fisheries – 2nd Edition (the Guidelines).

The Small Pelagic Fishery Management Plan 2009 (the Management Plan) was determined by AFMA on 2 November 2009, and was approved by the then Minister for Agriculture, Fisheries and Forestry on 30 December 2009. The Management Plan was amended in 2014 to ensure consistency with the Fisheries Management Regulations 1992, which requires quota species to be disposed of to fish receiver permit holders.

Product derived from the SPF is currently included in the List of Exempt Native Specimens under Part 13A of the EPBC Act until 29 October 2015. The accreditation of the Management Plan under Part 13 of the EPBC Act also expires on 29 October 2015.

In early 2015, an Australian company proposed to operate a large mid-water trawler freezer vessel in the SPF. This vessel, the 95-metre FV Geelong Star, commenced fishing in April 2015 and is currently operating in the fishery. There are also two other vessels operating in the fishery.

2. Description of the Fishery2.1. Fishing areaThe SPF extends from the Queensland/New South Wales border, typically outside 3 nautical miles, around southern Australia to a line at latitude 31° south (near Lancelin, north of Perth). The SPF is divided into two zones east and west of Tasmania at 146°30’ east (Figure 1) to enable stock-based management arrangements.

Since Statutory Fishing Rights (SFRs) took effect under the Management Plan on 1 May 2012, operators are required to cover any catches of target species with quota.

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Figure 1. Map of the SPF and Eastern/Western sub-area management zones.

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2.2. Fishing gear and methodSpecies in the SPF are targeted using purse seine (Figure 2) and mid-water trawl (Figure 3) methods. Jigging was trialled in the 2013-14 fishing season but has not been implemented as a permanent fishing method.

Figure 2. Purse seine gear.

Figure 3. Mid-water trawl gear. The minimum mesh size for mid-water trawl nets is 30 millimetres.

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2.3. Target speciesThe target species in the SPF are:

Australian sardine (Sardinops sagax) Blue mackerel (Scomber australasicus) Jack mackerel (Trachurus declivis, T. murphyi) Redbait (Emmelichthys nitidus).

The Australian Bureau of Agricultural and Resource Economics and Sciences (ABARES) Fishery Status Report 2013-14 lists all the target species of the SPF except redbait (western stock) as not overfished and not subject to overfishing. Redbait (western stock) is listed as not being subject to overfishing and uncertain in terms of whether it is overfished due to limited information on biomass.

Refer to Section 5.2 regarding bycatch. Refer to Section 7 regarding interactions with threatened, endangered and protected (TEP).

2.4. Allocation between sectorsFishers need to hold quota statutory fishing rights (SFRs) allocated by AFMA to fish in the SPF. SFRs allow fishers to catch the fish species that are under quota. SFRs are transferable between fishers. As of 5 May 2015 there are 153 SFR holders and a total of 61 047 305 SFR units in the fishery (Table 1).

Table 1. Quota SFR allocations in the SPF as of 5 May 2015.

SFR Unit Name Number of SFR holders

Quota SFR Units

Australian sardine SFR - SPF 3 3 000 001Eastern sub-area blue mackerel SFR - SPF 25 5 770 594Eastern sub-area jack mackerel SFR - SPF 25 11 170 217Eastern sub-area redbait SFR - SPF 25 11 866 489Western sub-area blue mackerel SFR - SPF 25 9 724 000Western sub-area jack mackerel SFR - SPF 25 11 396 002Western sub-area redbait SFR - SPF 25 8 120 002

Current quota ownership and holdings can be found on the AFMA website at: http://www.afma.gov.au/fisheries-services/concession-holders-conditions/ .

2.5. Governing legislation/fishing authorityThe SPF is managed under the Management Plan established under the Fisheries Management Act 1991. Fishing authority in the SPF is afforded by the holding of quota SFRs allocated by AFMA. These rights authorise the taking of a determined amount of target species each season in accordance with conditions specified on the concession and associated legislation and policies. A boat must be nominated to an SFR in order to operate in the fishery.

2.6. Changes to management arrangements

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The changes to management arrangements in the SPF since the previous status report was provided to the Department of the Environment on 20 January 2014 are listed below:

Final (Small Pelagic Fishery) Declaration 2012The Final Declaration was made under the EPBC Act on 19 November 2012 and expired on 18 November 2014. The Final Declaration prohibited the use of mid-water trawl with a vessel greater than 130 metres in length, an on-board fish processing facility, and storage capacity greater than 2000 tonnes while an expert panel assessed the environmental impacts of the activity.

The First Expert Panel was established under the Final Declaration to assess the environmental impacts of mid-water trawl factory freezer vessels greater than 130 metres in length operating in the SPF. The First Expert Panel Report was released by the Department of the Environment on 19 November 2014. AFMA considered the findings of the report in reviewing management arrangements in the SPF for the 2015-16 fishing season.

Final (Small Pelagic Fishery) Declaration (No. 2) 2013The second Final Declaration was made under the EPBC Act on 26 April 2013 and expired on 24 April 2015. The Second Expert Panel was established under the second Final Declaration to assess the impacts of mid-water trawl vessels in the SPF with a hold storage capacity of 1600 tonnes or greater that may undertake transhipment activities. The Second Expert Panel Report was released by the Department of the Environment on 24 April 2015. AFMA considered the findings of the report in reviewing management arrangements in the SPF for the 2015-16 fishing season.

SPF fishing concessions updated to require all mid-water trawlers to have Vessel Management Plans (VMPs) on 1 May 2013Conditions on SPF fishing concessions were updated to require all mid-water trawl vessels to have an AFMA-approved VMP before commencing fishing on 1 May 2013. VMPs are comprehensive boat-specific plans to minimise the risk of interactions with protected species (e.g. seabirds, seals and dolphins). VMPs contain both recommendations and mandatory measures that must be employed by the boat to ensure that all reasonable steps are taken to minimise its impact on protected species.

Fishing concessions and conditions for operation for the SPF can be found on the AFMA website at:

o http://www.afma.gov.au/fisheries-services/concession-holders-conditions/ .

Updates to Small Pelagic Fishery Management Plan 2009 (revised 2014)The Management Plan was amended in 2014 to ensure consistency with the Fisheries Management Regulations 1992, which requires quota species to be disposed of to fish receiver permit holders.

Fisheries Management Amendment (Super Trawlers) Regulation 2015On 24 December 2014 the Australian Government announced intentions to ban vessels greater than 130 metres in length from Australian waters. The amendment to the Fisheries Management Regulations 1992 was enacted on 16 April 2015. The amendment prevented all boats over 130 metres in length from undertaking fishing related activities within the Australian Fishing Zone.

Revision of the SPF Harvest Strategy 2008 (revised 2015)

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The SPF Harvest Strategy was revised in April 2015, following a review conducted by CSIRO (Smith et al. 2015). The 2015 Harvest Strategy will be further reviewed in time for the 2016-17 fishing season. Further information on the revision of the SPF Harvest Strategy is described in Section 3.5.

Small Pelagic Fishery (Closures) Direction No. 1 2015The SPF Closure Direction came into effect under section 41A(2) of the Fisheries Management Act 1991 on 8 May 2015 and implemented temporal and spatial closure arrangements to prevent unacceptable dolphin mortalities. The direction applies to concession holders fishing in the SPF using the mid-water trawl fishing method. Arrangements included a ban on night fishing and fishing zone closures. Zone closures are triggered in the event of the death of one or more dolphins as a result of mid-water trawl operations and are enforced for a period of six months from the date of the interaction.

The management arrangements for the SPF are described in Section 3.

2.7. Status of export approval/accreditation under the EPBC Act The SPF has operated under a series of short term Wildlife Trade Operation Declarations (WTO), List of Exempt Native Specimens approvals, and management plan accreditations under Part 13 and 13A of the EPBC Act since 29 November 2004.

Product derived from the SPF is included in the List of Exempt Native Specimens under Part 13A of the EPBC Act until 29 October 2015. The accreditation of the Management Plan under Part 13 of the EPBC Act also expires on 29 October 2015.

3. Management 3.1. Management arrangements The SPF is managed through input and output controls as prescribed in the:

Fisheries Management Act 1991 and associated amendments and temporary orders Fisheries Management Regulations 1992 and associated amendments and temporary

orders Small Pelagic Fishery Management Plan 2009 (the Management Plan) and

associated amendments, directions and determinations SPF Harvest Strategy developed in accordance with the Commonwealth Fisheries

Harvest Strategy Policy 2007 Small Pelagic Fishery (Closures) Direction No. 1 2015 Conditions on quota SFRs (including VMPs for mid-water trawl vessels).

3.2. SPF Management Plan

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The Management Plan outlines management arrangements for the SPF. The objectives of the Management Plan are to:

manage the SPF efficiently and cost-effectively exercise the precautionary principle regarding the impact of fishing activities on non-

target species and the long-term sustainability of the marine environment ensure accountability to the fishing industry and Australian community in the

management of the SPF achieve government targets for cost recovery maximise economic efficiency in the exploitation of the resources of the SPF achieve the best use of the living resources of the Australian Fishing Zone (AFZ).

The SPF moved to a quota management system on 1 May 2012. Access to the SPF is provided through quota SFRs allocated by AFMA under the Management Plan. Quota SFRs authorise the taking of a pre-determined amount of SPF target species quota. SFRs are fully tradeable, allowing operators to increase or decrease the amount of quota they are entitled to take in a season. No further quota SFRs will be granted for the SPF.

Along with conditions on quota SFRs, the Management Plan details concession holders’ obligations when fishing in the area of the fishery. AFMA also has the right to make closure directions and formulate TAC determinations under the Management Plan and the Fisheries Management Act 1991. Copies of the Management Plan are available from the Commonwealth of Australia Law (ComLaw) website at:

http://www.comlaw.gov.au/Details/F2014C01077 .

The effectiveness of the Management Plan was reviewed by the South East Management Advisory Committee (SEMAC) in May 2014. A summary of the advice is available in the minutes of the meeting at:

http://www.afma.gov.au/wp-content/uploads/2014/09/Minutes_SEMAC_15.pdf .

3.3. Consultation processesThe main consultative arrangements for the SPF involved the South East Management Advisory Committee (SEMAC) and the Small Pelagic Fishery Resource Assessment Group (SPFRAG). The SPFRAG provided advice on the status of SPF stocks and the impact of fishing on the marine environment to the SEMAC and the AFMA Commission. SPF TACs are set by the AFMA Commission following consideration of advice from SPFRAG, SEMAC and AFMA Management.

The members of the SPFRAG completed their term on 30 June 2015. AFMA is taking the opportunity to review how the AFMA Commission receives scientific advice regarding the SPF and how stakeholders are engaged in that process.

Recent consultative events include:

The Small Pelagic Technical Workshop was hosted by the South Australian Research and Development Institute (SARDI) in Adelaide on 14-18 July 2014. The workshop was held to review Australia’s SPF science and benchmark both the SPF and the South Australian Sardine Fishery against global standards. The workshop was attended by internationally recognised scientists, and concluded that the science underpinning Australia’s management of the fisheries was robust, precautionary and in line with international best practice guidelines. The workshop included a stakeholder forum for recreational fishing and conservation stakeholders.

The First SPF Stakeholder Forum for conservation and recreational fishing stakeholders took place in Hobart on 17 October 2014. The purpose of the forum was

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to provide information on current management and science in the SPF, and to engage with conservation and recreational fishing stakeholders about the possible future management of the fishery. The forum included presentations on management, including work undertaken on localised depletion, research examining harvest rates applied under the harvest strategy and Daily Egg Production Method (DEPM) surveys.

The Second SPF Stakeholder Forum for conservation and recreational fishing stakeholders took place in Hobart on 24 March 2015. The purpose of the forum was to provide information on current management and science in the SPF, and to engage with conservation and recreational fishing stakeholders about the possible future management of the fishery. The forum also included presentations responding to stakeholder concerns regarding the operations of a new mid-water trawl vessel in the SPF fishery.

The SPF Technical Marine Mammal Mitigation Workshop took place in Melbourne on 25-26 June 2015. The workshop discussed options for minimising marine mammal interactions from mid-water trawl operations in the SPF and identified research gaps. It was attended by fishing stakeholders, including trawler operators, government officials and marine life experts, and was hosted by the Fisheries Research and Development Corporation (FRDC).

Consultation also occurs on an ongoing basis with recreational fishers, Commonwealth government departments, state governments and environmental non-government organisations. AFMA holds 2-3 recreational fishing forums and environmental forums annually.

3.4. Harvest StrategyThe Harvest Strategy for the SPF outlines a stock-based approach that seeks to optimise stock sustainability and economic yield. It reflects obligations under the Commonwealth Fisheries Harvest Strategy Policy and Guidelines. The Harvest Strategy primarily details a series of decision rules to determine TACs for target species, in line with the estimated biomass of each stock. The Harvest Strategy is available at:

http://www.afma.gov.au/wp-content/uploads/2014/11/SPF-Harvest-Strategy- 20152.pdf.

3.5. Harvest Strategy reviewThe original SPF Harvest Strategy, published in 2008, applied the same maximum harvest rate to all target species in the SPF. This was reviewed in 2015 to improve consistency with the Commonwealth Harvest Strategy Policy and Guidelines.

The review of the SPF Harvest Strategy was informed by new research (Smith et al. 2015). The review used population modelling to examine the effects of various harvest rates on the target species in the SPF, and suggested that harvest rates for the SPF should be species-specific.

Following consideration of the new research and advice from the SPFRAG, SEMAC and AFMA Management, the AFMA Commission agreed to revise the SPF Harvest Strategy in April 2015.The new Harvest Strategy will be reviewed again in 2016, and then at least once every three years to ensure its ongoing relevancy and appropriateness over time.

The revised SPF Harvest Strategy framework incorporates tier levels with different information needs and harvest control rules:

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Tier 1 is based on a quantitative stock assessment using Daily Egg Production Method (DEPM) surveys and an annual fishery assessment, and provides the greatest certainty in setting recommended biological catches (RBCs) and allows the highest potential harvest rate.

Tier 2 provides a medium level of certainty based on an annual fishery assessment and allows a lower potential harvest rate.

Tier 2(b) – Atlantis provides lower levels of assessment based on an annual fishery assessment and Atlantis-SPF modelling, and applies where a DEPM survey has not been undertaken or has expired.

Tier 3 applies when the requirements of other Tier levels are not met, and manages the greater levels of uncertainty through much more conservative harvest rates.

Total Allowable Catches (TACs)Recommended Biological Catches (RBCs) are calculated using the estimated spawning biomass of each stock obtained from DEPM surveys and the harvest rates specified in the SPF Harvest Strategy. State catches are then deducted from the species RBC to provide the TAC considered by SEMAC. The SEMAC then provides advice to the AFMA Commission on the setting of TACs in the fishery for the season.

The AFMA Commission makes the final decision on TACs after considering the sustainability of the stock, state catch information and the broader ecosystem effects, as well as the advice of the SPFRAG, SEMAC and AFMA Management.

The TACs for the target species in the fishery for the 2015-16 season leave 92.4 per cent of the combined estimated fish stocks in the water. Regional catch limits have also been applied to distribute fishing effort across the fishery, enable the collection of representative data across the fishery, and minimise any potential risk of localised stock depletion. The regional catch limits comprise a series of 120 grids and seven zones (Figure 4).

Further information on regional catch limits is described in the VMP for the mid-water trawl vessel currently operating in the SPF, which is available from the AFMA website at:

http://www.afma.gov.au/fisheries/small-pelagic-fishery/ .

Table 2. TACs for 2011-12 to 2015-16.

Species TAC (t) 2011-12

TAC (t) 2012-13

TAC (t) 2013-14

TAC (t)2014-15

TAC (t) 2015-16

Australian sardine (east) 400 200 270 560 1880

Blue mackerel (east) 2500 2600 2700 2660 2630

Blue mackerel (west) 4200 6500 6500 6500 6200

Jack mackerel (east) 4600 10 100 9800 10 230 18 670

Jack mackerel (west) 5000 5000 5000 5000 3600

Redbait (east) 8600 6900 5200 5000 3310

Redbait (west) 5000 5000 5000 5000 2880

TOTAL 30 300 36 300 34 470 34 950 39 170

Surveys

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The survey history for target stocks in the SPF is described in Table 3. Survey results are obtained with the DEPM, and are used to calculate RBCs based on the estimated spawning biomass of each stock and the harvest rates specified in the SPF Harvest Strategy.

Table 3. Most recent DEPM surveys for target species in the SPF.

Stock Date surveyed NotesBlue mackerel (east) 2014 Results of most recent survey

(2014) will be available for consideration in the TAC-setting process for the 2016-17 season. Also surveyed in 2004.

Blue mackerel (west) 2005 No further surveys since 2005.Jack mackerel (east) 2014 The results of the survey were

applied in the TAC-setting process for the 2015-16 season. The previous DEPM survey was in 2002.

Jack mackerel (west) - There are no DEPM biomass estimates for this stock.

Redbait (east) 2006 Also surveyed in 2005. Redbait (west) - There are no DEPM biomass

estimates for this stock. Australian sardine (east) 2014 The results of the 2014 survey were

preliminary and therefore not used for setting the TAC for the 2015-16 season. The results of further surveys in late 2014 will be available for the TAC-setting process for the 2016-17 season. Also surveyed in 2004.

3.6. Performance of the fisheryA statement of the performance of the SPF against its objectives, performance indicators and performance measures is made in AFMA’s Annual Report. The Annual Report is available on AFMA’s website at:

http://www.afma.gov.au/wp-content/uploads/2014/04/2013-14-AFMA-Annual- Report.pdf.

The effectiveness of the Management Plan as measured against its performance criteria was reviewed by the South East Management Advisory Committee (SEMAC) in May 2014. A summary of the advice is available in the minutes of the meeting at:

http://www.afma.gov.au/wp-content/uploads/2014/09/Minutes_SEMAC_15.pdf .

3.7. Description of cross-jurisdictional management arrangements The fishery operates under cross jurisdictional arrangements in the form of Offshore Constitutional Settlement (OCS) arrangements. AFMA continues to review management arrangements with relevant state agencies to pursue complimentary management measures, particularly for sardine catch and bycatch.

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4. Research and Monitoring 4.1. Research undertaken in the SPFAFMA’s strategic research objectives for the SPF are described in the Small Pelagic Fishery Five Year Strategic Research Plan 2012-13 to 2016-17. Operators work with AFMA and external research organisations to undertake scientific monitoring programs. Observers also undertake biological sampling of target and bycatch species. This information is used to assess the impacts of the fishery on the marine environment and the effectiveness of management measures and commitments under the Bycatch and Discarding Workplan 2014-16. Table 4 provides a list of research projects undertaken or scheduled to be undertaken in the SPF.

The SPF research plan is available from the AFMA website at: http://www.afma.gov.au/research/fishery-research-plans/ .

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Table 4. Summary of recent research undertaken or scheduled to be undertaken in the SPF.Project Purpose Research institution Status / Timing

Egg identification (FRDC Project #2014/022)

Developing a rapid molecular identification technique to improve egg production based fish biomass assessments – currently focused on tropical species but could be extended to temperate species.

James Cook University (JCU)

Anticipated completion in August 2017

Method development (FRDC Project #2014/026)

Looking at the robustness and precision of estimates of egg production and spawning biomass obtained using the daily egg production methodology (DEPM)

South Australian Research and Development Institute (SARDI)

Anticipated completion in January 2016

Method Workshop(FRDC Project #2013/063)

Benchmarking Australia’s small pelagic fisheries against world's best practice

South Australian Research and Development Institute (SARDI)

Workshop held in Adelaide over 5 days in July 2014; report to be completed in 2015

Harvest Strategy (FRDC Project #2013/028)

Reviewing and updating harvest strategy settings for the SPF. Results used in the review the SPF Harvest Strategy 2008 for the 2015-16 season, which commenced on 1 May 2015

CSIRO Completed February 2015: Review and update of harvest strategy settings for the Commonwealth Small Pelagic Fishery: single species and ecosystem considerations (Smith et al. 2015)

Preliminary DEPM survey (FRDC Project #2013/053)

Surveying spawning stock in the Small Pelagic Fishery on the East Coast (sardines and jack mackerel). Results used to inform the setting of TACs for the 2015-16 season, which commenced on 1 May 2015

South Australian Research and Development Institute (SARDI)

Completed March 2015: Summer spawning patterns and preliminary Daily Egg Production Method survey of jack mackerel and Australian sardine off the East Coast (Ward et al. 2015a)

2nd DEPM survey Egg distribution, reproductive parameters and South Australian Surveys undertaken on east coast

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(FRDC Project #2014/033)

spawning biomass of blue mackerel, Australian sardine and tailor off the East Coast during late winter and early spring

Research and Development Institute (SARDI)

during August/September 2014; anticipated completion in October 2015

Jack mackerel stock structure

Summary of information on the stock structure of jack mackerel in the SPF. The report suggests that further genetic studies may be required to confirm the existence of a separate stock

CSIRO Completed May 2015: Jack mackerel stock structure in the SPF (Bulman et al. 2015a)

Importance of small pelagic species in diet of Southern Bluefin Tuna (SBT)

Report on the importance of small pelagic species in the diets of SBT. The report suggests that fishing for small pelagic species have only minor impacts on other parts of the ecosystem and that alternative food sources exist for species like tuna

CSIRO Completed May 2015: Summary of SBT diet studies in relation to SPF species (Bulman et al. 2015b)

Annual SPF fishery assessment (RR Project #2014/0819)

Annual assessments of SPF stocks are required under the SPF Harvest Strategy. The report suggests that recent catch levels of all SPF quota species are sustainable

SARDI Completed June 2015: Commonwealth Small Pelagic Fishery: Fishery Assessment Report 2014 (Ward et al. 2015b)

Small Pelagics Research Co-ordination Program(FRDC Project #2013/064)

Given the national interest in small pelagic resources and their utilisation a subprogram has been formed to coordinate the research undertaken. This will include sardines, jack mackerel, blue mackerel, redbait and small pelagics in the Northern Territory

University of Tasmania (UTAS)

Meeting of technical group scheduled for 2015

Technical workshop to explore mitigation options for TEPs in the SPF (FRDC Project #2015/046)

The workshop discussed options for minimising marine mammal interactions from mid-water trawl operations in the SPF and identified research gaps. It was attended by fishing stakeholders, including trawler operators, government officials and marine life experts.

Fisheries Research and Development Corporation (FRDC)

Workshop held in June 2015; the final report was completed in July 2015 and is available on the FRDC website.

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4.2. Monitoring programsThe monitoring program for the SPF includes information collected through logbooks and catch disposal records (CDRs), scientific surveys, observer coverage and independent research. An overview of the monitoring program is provided below.

Logbooks All concession holders in the SPF are required to complete paper and/or electronic logbooks. Purse seine operations must complete the Purse Seine Daily Fishing Log (PS01A) and mid-water trawl operations must complete the Eastern Finfish Trawl Daily Fishing Log (EFT01B) or Southern and Western Finfish Trawl Daily Fishing Log (SWT01A). Logbooks provide for the recording of information on the vessel, operator, gear, location, time and catch for each fishing operation. Information on bycatch species, interactions with TEP species and other trip observations including discard rates are also collected. Accurate data from logbooks allow AFMA to monitor bycatch and discards in the fishery and respond to any emerging issues.

Catch disposal records (CDRs)CDRs are used by fisheries managed under the quota system to gather and maintain data on the species caught. On landing, the fishing concession holder, SFR holder, or a nominated authorised person is required to complete a catch disposal record form detailing the species caught and their accurate weight. A GAB Catch Disposal Record (GAB2C) or SESSF Catch Disposal Record (SESS2A/B) must be used for all fishing methods in the SPF.

Observer programConcession holders are required to carry an observer at any time when directed to do so by AFMA. The baseline coverage for the SPF is:

10 per cent of days fished in the fishery for purse seine 20 per cent of days fished in the fishery for mid-water trawl.

If a vessel is new to the SPF the concession holders must also ensure an AFMA observer is on board the vessel for the first five trips for purse seine vessels and the first 10 trips for mid-water trawl vessels, and as directed by AFMA thereafter.

There were three observed trips for purse seine operations in 2014. No mid-water trawl vessels operated in the SPF in 2014. All four trips for have been observed for mid-water trawl up to 30 June 2015.

Electronic monitoringAll vessels are required to operate an AFMA approved Vessel Monitoring System (VMS) at all times. It is compulsory that the mid-water trawl vessel currently operating in the fishery has an electronic monitoring (e-monitoring) system operational during all fishing activities.

5. Catch and effort 5.1. Total catch of target speciesThe fishing season for the SPF starts on 1 May each year. Catches have been significantly below the TACs for all species. Commercial catch data is provided in Table 5. More information is detailed in the ABARES fishery status reports at:

http://www.agriculture.gov.au/abares/publications .

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Table 5. SPF TACs and reported catches for fishing seasons 2011-15*. 2011-12 2012-13 2013-14 2014-15

Stock TAC (t)

Catch (t)

TAC (t)

Catch (t)

TAC (t)

Catch (t)

TAC (t)

Catch (t)*

Australian sardine 400 23 200 15 270 17 560 161

Blue mackerel (east)

2500 0 2600 1 2700 0 2660 209

Blue mackerel (west)

4200 130 6500 0 6500 0 6500 0

Jack mackerel (east)

4600 0 10 100 0 9800 0 10 230 272

Jack mackerel (west)

5000 0 5000 0 5000 0 5000 0

Redbait (east) 8600 0 6900 0 5200 0 5000 2Redbait (west) 5000 0 5000 0 5000 0 5000 0

Total 30 300 153 36 300 16 34 470 17 34 950 644*Catches rounded to the nearest 100 tonne.

Research catch allowancesIn addition to TACs, research catch allowances can be set for the SPF target stocks for research purposes (See Table 6). No research catch allowance was set for the 2013-14 and 2014-15 seasons.

Table 6. SPF Research Catch Allowances for 2015-16. 2015-16

Stock Research allowance (t) Research catch (t)*Australian sardine 1 -Blue mackerel (east) 3 -Blue mackerel (west) 3 -Jack mackerel (east) 3 -Jack mackerel (west) 3 -Redbait (east) 2 -Redbait (west) 2 -Total 17 -

*Data not yet available.

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5.2. BycatchBycatch in the SPF is very low due to the targeted nature of the fishing operations. SPF operators must cover any bycatch of other fishery quota species with quota for that species. Bycatch information for each fishing season is available in AFMA’s Catchwatch reports at:

http://www.afma.gov.au/fisheries-services/catchwatch-reports/ .

Refer to Section 7 regarding interactions with TEP species.

Ecological Risk Management and TEP species In June 2007, AFMA released Ecological Risk Assessment (ERA) reports for both the purse seine and mid-water trawl operations in the SPF. The reports describe the ERA process for the SPF and list priority species which were scored at high risk under a Level 2 assessment using Productivity Susceptibility Analysis (PSA).

Due to the semi-quantitative nature of the risk assessment, the Level 2 PSA results do not directly account for all management measures. This results in an over-estimation of risk for some species. In March 2010, AFMA released Residual Risk Assessments reports based on the initial ERA reports to refine the results of the Level 2 assessment (see Table 7).

The ERA reports for both purse seine and mid-water trawl operations are available at: http://www.afma.gov.au/sustainability-environment/ecological-risk-

management-strategies/.

A rapid quantitative risk assessment on fishing operations in the SPF was conducted by Zhou et al. (2009). The highest level of assessment undertaken in the SPF was a Level 3 Sustainability Assessment for the Effects of Fishing (SAFE) for teleosts and chondrichthyans. The report is available on the AFMA website at:

http://www.afma.gov.au/wp-content/uploads/2014/11/Sustainability- Assessment-for-Fishing-Effect-SPF-April-2009.pdf.

The management measures to address the risks highlighted by the ERAs are described in Ecological Risk Management (ERM) reports for the SPF. ERM reports for both purse seine and mid-water trawl operations in the SPF were completed in March 2010. Specific actions to address these risks are described in the SPF Bycatch and Discarding Workplan and VMPs tailored for individual boats. SPF industry has also developed a Purse Seine Code of Practice which documents standard industry practice for vessel operation and minimising environmental impacts.

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Table 7. Summary of SPF species scored at high risk by ERA assessments.

Operation type Level of assessment

Date # species assessed

# species identified as being at high risk

Purse seine ERA Level 2 PSA

2007 235 108

ERA Level 2 PSA – Residual Risk

2010 108 29

ERA Level 3 SAFE Assessment

2010 93* 0*

Mid-water trawl ERA Level 2 PSA

2007 237 26

ERA Level 2 PSA – Residual Risk

2010 26 8

ERA Level 3 SAFE Assessment

2010 98* 0*

*The ERA Level 3 SAFE assessment was for teleosts and chondrichthyans only.

Bycatch and Discarding WorkplanAFMA implemented Bycatch and Discard Workplans in 2009 and 2011 that specified measures to at reduce the risk of interaction between SPF gear and TEP species.

The SPF Bycatch and Discard Workplan 2011-13 was reviewed by the SPFRAG in October 2013. The review noted that all action items in the 2011-13 Workplan had been progressed, however low levels of fishing effort prevented the full completion or implementation of some items. The action items were incorporated into a new workplan developed for 2014-15. The SPF Bycatch and Discarding Workplan 2014-16 is available at:

http://www.afma.gov.au/wp-content/uploads/2014/11/Bycatch-and-Discard- Work-Plan-SPF-2016.pdf.

Vessel Management Plans (VMPs) The accreditation for the SPF under Part 13 of the EPBC Act requires mid-water trawl boats to use effective mitigation approaches and devices to minimise interactions with dolphins, seals and seabirds. AFMA supports this requirement through VMPs designed for all mid-water trawl boats operating in the SPF. Conditions on SPF fishing concessions were amended to require all mid-water trawl vessels to have an AFMA-approved VMP before commencing fishing on 1 May 2013.

VMPs are developed by AFMA in consultation with industry and set out individually tailored mitigation measures for each boat to minimise seabird, seal and dolphin interactions. Measures include using an AFMA-approved seal exclusion device to reduce seal interactions and avoiding the discharge of biological waste from boats to reduce seabird, seal and dolphin attraction. VMPs also outline the reporting requirements of any interactions with a listed or protected species.

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The existing VMP in the SPF outlines regional catch limits for the vessel and rules to ensure that effort is distributed across the fishery. Regional catch limits are applied to enable the collection of representative data across the fishery, and minimise any potential risk of localised stock depletion.

The VMP for the mid-water trawl vessel currently operating in the SPF is available from the AFMA website at:

http://www.afma.gov.au/fisheries/small-pelagic-fishery/ .

6. Status of target stocks6.1. Resource concernsThere has been no change to the stock status since the previous WTO status report and no resource concerns related to SPF target species. The ABARES Fishery Status Report 2013-14 lists all stocks of SPF species as ‘not overfished’, and all stocks except for Redbait west, as ‘not subject to overfishing’. Redbait (west) is assessed as ‘uncertain’ because of limited information available to assess its status.

6.2. Results of recent stock assessmentsThe annual assessment for 2014 (Ward et al. 2015b) concludes that there is no scientific evidence to suggest that any SPF species are being unsustainably harvested.

Refer to Table 3 for survey information.

7. Interactions with protected speciesProtected species interaction reports are produced quarterly and are available from the AFMA website at:

http://www.afma.gov.au/sustainability-environment/protected-species- management/protected-species-interaction-reports/.

There were no reported interactions with TEP species in the SPF for 2014, or for the first quarter (1 January – 31 March) in 2015.

For the second quarter 2015 (1 April – 30 June) there were:

nine reported interactions with common dolphins (Delphinis delphis) 12 reported interactions with Australian fur seals (Arctocephalus pusillus

doriferus) two reported interactions with shy albatross (Thalassarche cauta) one interaction with a mako shark (Isurus oxyrinchus).

Management action taken to reduce impacts

Interactions with protected species in the SPF in 2015 led to increased restrictions on fishing operations via the VMP. Subsequent dolphin interactions led to the Small Pelagic Fishery (Closures) Direction No. 1 2015 which introduced bans on night time fishing and triggered closures for any dolphin mortalities.

Under the Direction, zone 6 off southern New South Wales and Victoria was closed to mid-water trawling methods for a period of six months from 17 June 2015. This is a result of a common dolphin mortality recorded in zone 6 on 17 June 2015.  The closure will be in force until midnight on 16 December 2015.

AFMA has also sought advice from other sources on addressing protected species interactions. The outcomes of a SPF Technical Marine Mammal Mitigation Workshop

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convened by the Fisheries Research and Development Corporation on 25-26 June 2015 will be considered for future management actions. The report of the technical workshop is available on the FRDC website.

8. Impacts of the fishery on the ecosystemAFMA has updated the way it manages the SPF in order to further minimise the risk of ecosystem impacts. AFMA has applied regional catch limits to distribute fishing effort across the fishery, enable the collection of representative data across the fishery, and minimise any potential risk of localised stock depletion (Figure 4). Recent research on predator diets (Bulman et al. 2015b) also indicates that fishing for small pelagic species in Australian waters has only minor impacts on other parts of the ecosystem, as alternative food sources exist for large predator species like tuna.

Fishing in the SPF is relatively selective and therefore has minimal bycatch.

Information on catch and TEP interactions are available on the AFMA website at:

http://www.afma.gov.au/fisheries-services/catchwatch-reports/ http://www.afma.gov.au/sustainability-environment/protected-species-

management/protected-species-interaction-reports/.

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Figure 4. Indicative map of the SPF regional catch limit grids and management zones.

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9. Progress in implementing fishery assessment conditions and recommendations

Table 8. Conditions on the Part 13 SPF management plan accreditation from 28 November 2012 to 18 November 2014; extended to 24 April 2015; extended to 29 October 2015. Conditions Level of Achievement DeadlineCondition 1. Prior to fishing, mid-water trawl vessels must have in place effective mitigation approaches and devices, to satisfy AFMA, to minimise interactions with dolphins, seals and seabirds.

Achieved – Ongoing The mid-water trawl vessel, FV Geelong Star, commenced fishing operations in the SPF on 2 April 2015. An AFMA-approved Vessel Management Plan (VMP) was finalised prior to the start of fishing activities and continues to be updated to minimise interactions with protected species.

All mid-water trawl vessels are now required to have AFMA-approved VMPs to minimise interactions with dolphins, seals and seabirds.

AFMA has also introduced night time fishing bans and six month triggered closures for mid-water trawlers for any dolphin mortality.

Ongoing

Condition 2. AFMA requires that at least one observer be deployed on each new mid-water trawl vessel for the first 10 fishing trips with additional observer coverage or other monitoring implemented as appropriate, following scientific assessment of the SPF.

Achieved – Ongoing The baseline observer coverage in the SPF is:

10 per cent of days fished in the fishery for purse seine

20 per cent of days fished in the fishery for midwater trawl.

New boats that enter the fishery are required to have observers for the first five trips for purse seine boats and the 10 trips for midwater trawl boats.

The Geelong Star is required to carry an AFMA observer for the first 12 months and then on at least 20 per cent of trips. The Geelong Star is also required to have an electronic monitoring (camera) system installed. A bycatch officer was also deployed on the vessel for the first 4 trips.

These levels may be increased based on the need for data.

Ongoing

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Table 9. Recommendations resulting from the Part 13A SPF LENS exemption from 6 January 2010 to 2 November 2014; extended to 29 October 2015. Recommendations

Level of Achievement Deadline

Recommendation 1. Operation of the SPF will be carried out in accordance with the management regime made under the Fisheries Management Act 1991 (FMA).

AchievedSFRs under the SPF Management Plan came into effect on 1 May 2012. All SPF operators are required to cover any catches of jack mackerel, blue mackerel, redbait and Australian sardine with quota.

Ongoing

Recommendation 2. AFMA to inform the Department of the Environment of any intended amendments to the management arrangements that may affect the criteria on which EPBC Act decisions are based.

Achieved – OngoingAnnual Status Reports to the Department of the Environment have outlined intended amendments and any implemented changes to the management arrangements of the SPF.

In addition, the Department of the Environment has been informed of significant intended management changes as they have occurred.

Ongoing

Recommendation 3. AFMA to produce and present reports to the Department of the Environment annually as per Appendix B to the Guidelines for the Ecologically Sustainable Management of Fisheries - 2nd Edition.

Achieved – Ongoing AFMA has provided the Department of the Environment with annual status reports since 2009.

Annually

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Recommendations

Level of Achievement Deadline

Recommendation 4. By December 2010, AFMA to: a) develop and

implement appropriate management responses to address and mitigate risks identified in the ERA

b) ensure that the ERA and management responses are made publically available once implemented.

Achieved ERM reports for the purse seine and mid-water trawl sectors of the SPF were completed in March 2010.

Section 5.2 of this submission outlines management responses to address and mitigate risks identified in the ERA through the SPF Bycatch and Discarding Workplan.

The ERAs (for both purse seine and midwater trawl) and ERM reports are available on the AFMA website:

http://www.afma.gov.au/sustainability- environment/ecological-risk-management-strategies/.

December 2010

Recommendation 5.By June 2010, AFMA to:a) finalise and

implement the bycatch and discard workplan for the SPF with particular focus on seal interactions

b) conduct annual reviews, looking at the long term strategic approach in reducing bycatch and discards

AchievedThe Small Pelagic Fishery Bycatch and Discarding Workplan (the workplan) was first agreed in September 2009.

An annual review of the 2009 workplan was completed in 2010 and it was renewed in 2011.

The 2011 workplan was subsequently reviewed in 2012 and a final report of the 2011 workplan was completed in October 2013.

The 2014-16 workplan is available on the AFMA website.

June 2010 and annually

Recommendation 6.AFMA to continue to cooperate with relevant jurisdictions to pursue complementary management and research of shared small pelagic stocks.

OngoingAFMA has held discussions with stakeholders and States regarding complementary management and research. AFMA continues to focus on complementary arrangements on bycatch management with New South Wales, South Australia, Tasmania and Victoria.

State representatives attended SPFRAG and SEMAC meetings.

Ongoing

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Recommendations

Level of Achievement Deadline

Recommendation 7.AFMA to consider the development of appropriate performance measures capable of responding to future ecosystem changes in the fishery.

AchievedPerformance measures relevant to future ecosystem changes in the fishery are contained in section 12 of the SPF Management Plan. These include:

data collection, research and consultation reviewing ERAs to determine the risk to the

maintenance of an ecologically sustainable fishery

setting catch limits for quota species in accordance with the SPF Harvest Strategy

setting catch limits (or other measures) to ensure the ecological sustainability of non-quota species.

The effectiveness of the Management Plan was reviewed against its performance criteria by the South East Management Advisory Committee (SEMAC) in May 2014. A summary of the advice is available in the minutes of the meeting at:

http://www.afma.gov.au/wp-content/ uploads/2014/09/Minutes_SEMAC_15.pdf.

SPFRAG monitored the fishery and any ecosystem impacts through the provision of annual data collection and the provision of fishery status reports. The best available information is used when setting conservative TACs for the fishery.

AFMA is monitoring the distribution of catch taken by the Geelong Star in relation to regional catch limits to ensure that effort and data collection is spread widely throughout the fishery.

Ongoing

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10. ReferencesAFMAa. 2010. Ecological Risk Management: Report for the mid-water sector of the Small Pelagic Fishery. March 2010.

AFMAb. 2010. Ecological Risk Management: Report for the purse-seine sector of the Small Pelagic Fishery. March 2010.

AFMAc.2010. Residual Risk Assessment of the Level 2 Ecological Risk Assessment Species Results: Report for the Small Pelagic Fishery – Mid-water Trawl. March 2010.

AFMAd.2010. Residual Risk Assessment of the Level 2 Ecological Risk Assessment Species Results: Report for the Small Pelagic Fishery – Purse Seine. March 2010.

AFMAe. 2013. Small Pelagic Fishery: Bycatch and Discard Workplan 2011-13 Final Report. 7p.

AFMAf. 2014. Small Pelagic Fishery: Bycatch and Discarding Work Plan 2014-16. 12p.

AFMAg. 2015. Small Pelagic Fishery Harvest Strategy 2008 (revised 2015). April 2015.

Bulman C, Fulton E, and Smith A. 2015a. Jack mackerel stock structure in the SPF. CSIRO.

Bulman C, Fulton E, and Smith A. 2015b. Summary of SBT diet studies in relation to SPF species. CSIRO.

Moore A, and Stephan M. 2014. Chapter 7: Small Pelagic Fishery. ABARES Fishery Status Reports 2013-14. October 2014. 91-110p.

Small Pelagic Fishery Management Plan 2009. 2014. Federal Register of Legislative Instruments F2014C01077. Prepared 11 September 2014; applying from 1 May 2014.

Smith A, Ward T, Hurtado F, Klaer N, Fulton E, and Punt A. 2015. Review and update of harvest strategy settings for the Commonwealth Small Pelagic Fishery – Single species and ecosystem considerations. CSIRO; FRDC 2013/028.

Ward T, Burnell O, Ivey A, Carroll J, Keane J, Lyle J, and Sexton S. 2015a. Summer spawning patterns and preliminary Daily Egg Production Method survey of Jack Mackerel and Australian Sardine off the East Coast. CSIRO; FRDC 2013/053.

Ward T, Ivey A, and Earl J. 2015b. Commonwealth Small Pelagic Fishery: Fishery Assessment Report 2014. Report to the Australian Fisheries Management Authority. SARDI. June 2015.

Zhou S, Fuller M, and Smith T. 2009. Rapid quantitative risk assessment for fish species in seven Commonwealth fisheries. CSIRO.

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