Download 5 Status of target stock - The Australian Fisheries Management

ANNUAL STATUS REPORT
Skipjack Tuna Fishery
August 2013
This report has been prepared by AFMA for consideration by the Department of
Sustainability, Environment, Water, Populations and Communities (SEWPaC) in
relation to the export approval of the Skipjack Tuna Fishery under the
Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act).
1
Contents
Contents ........................................................................................................................ 2
Introduction ................................................................................................................... 3
1
Description of the Fishery ................................................................................... 3
1.1
Target and byproduct species ..........................................................................................3
1.2
Management arrangements .............................................................................................3
1.3
Fishing methods ...............................................................................................................4
1.4
Fishing areas ....................................................................................................................5
1.5
Allocation between sectors ...............................................................................................6
1.6
Governing legislation/fishing authority ..............................................................................7
1.7
Status of export approval under the Environment Protection and Biodiversity
Conservation Act 1999 .................................................................................................................7
2
Management ......................................................................................................... 7
2.1
Changes to management .................................................................................................7
2.2
Performance of the fishery against objectives, performance indicators and performance
measures ......................................................................................................................................8
2.3
Compliance risks present in the fishery and actions taken to reduce these risks ............8
2.4
Consultation processes ....................................................................................................9
2.5
Description of cross-jurisdictional management arrangements........................................9
2.6
Compliance with threat abatement plans, recovery plans and domestic and international
agreements ............................................................................................................................... 10
3
Research and monitoring .................................................................................. 11
3.1
3.2
3.3
4
Collaborative research and results ................................................................................ 11
Monitoring programs used to gather information on the fishery .................................... 12
Observer program .......................................................................................................... 12
Catch data........................................................................................................... 12
4.1
Total catch of target species .......................................................................................... 12
4.2
Total catch of target species taken by other fisheries ................................................... 14
4.3
Catch of byproduct and bycatch species ....................................................................... 14
4.4 Observer data ...................................................................................................................... 15
4.5 Spatial issues/trends ........................................................................................................... 15
4.6 Effort data ............................................................................................................................ 16
5
Status of target stock......................................................................................... 16
5.1
5.2
6
Resource concerns ........................................................................................................ 16
Stock assessments and recovery strategies ................................................................. 16
Interactions with protected species .................................................................. 17
6.1
6.2
7
Frequency and nature of interactions ............................................................................ 17
Management action taken to reduce interactions .......................................................... 17
Impacts of the fishery on the ecosystem ......................................................... 17
7.1
7.2
7.3
Results of the Ecological Risk Assessments ................................................................. 17
Nature of impacts on the ecosystem ............................................................................. 18
Management action taken to reduce impacts ................................................................ 19
8
Progress in implementation of recommendations resulting from the previous
assessment of the fishery .......................................................................................... 20
8.1
Progress in implementing each recommendation ......................................................... 20
Summary ............................................................................................................................. 24
2
Introduction
Fishing for Skipjack Tuna is mainly done with purse seine or pole and line fishing. This
assessment covers the purse seine fishing method in the Skipjack Tuna Fishery (STF).
Pole and line fishing is covered under the Eastern Tuna and Billfish Fishery (ETBF) and
the Western Tuna and Billfish Fishery Strategic Assessments. On 24 January 2012, the
STF was exempted from export controls under Part 13A of the Environment Protection
and Biodiversity Conservation Act 1999 (EPBC Act) by including specimens derived from
the fishery in the list of exempt native specimens for nearly five years, until
30 November 2016. A copy of the letter to AFMA, including recommendations can be
found at the Department of Sustainability, Environment, Water, Population and
Communities (SEWPaC) website at: Skipjack Tuna Fishery.
1 Description of the Fishery
For a brief overview of the fishery including information on target species, fishing
techniques, number of operators, stock status and management arrangements, please
see the Fishery at a glance page on AFMA’s website.
1.1 Target and byproduct species
Skipjack Tuna is the only target species in the STF. By-product species include
Bigeye Tuna, Yellowfin Tuna, Southern Bluefin Tuna (SBT), Frigate Mackerel, sharks,
Mahi Mahi, rays and marlins. The take of Bigeye Tuna and Yellowfin Tuna is managed
under the Eastern Tuna and Billfish Fishery Management Plan 2010 and the Western
Tuna and Billfish Fishery Management Plan 2005. SBT is formally managed under the
Southern Bluefin Tuna Fishery Management Plan 1995.
1.2 Management arrangements
The Skipjack Tuna Fishery is managed as two sub fisheries, the Eastern Skipjack Tuna
Fishery (ESTF) and the Western Skipjack Tuna Fishery (WSTF) that have separate
areas. The ESTF and WSTF are managed through a permit system. Permits are issued
to operators on an annual basis. The fishing season extends from 1 July to 30 June
each year. There are currently no catch or effort limits for Skipjack Tuna as the resource
is considered to be underfished at present levels. However, if catch and effort intensity
changes significantly, AFMA will review the issues and implement the appropriate
alternative management regimes. When binding catch limits for Skipjack Tuna are
agreed at either IOTC or WCPFC, these will be implemented into Australia’s
management arrangements.
The following management arrangements apply to the STF:

entry is limited to holders of 12 month, transferable permits;

operations are limited to fishing zones within the two fisheries as specified on
permits;

operations are limited to purse seine fishing;

purse seine nets are not to exceed 1480 x 280 metres or 810 x 153 fathoms;

dimensions of purse seine nets are fixed, unless approval is gained from AFMA;

operations are limited to target species and incidental catch restrictions as specified
on permits;
3

high-seas pockets, that are wholly enclosed by Exclusive Economic Zones (EEZs)
between 20°N and 20°S, are closed to fishing;

intentional fishing within one nautical mile of data buoys is prohibited;

in the WSTF, fishers must promptly release unharmed Thresher Sharks when
brought alongside the vessel, and record all incidental catches and live releases;

catches of Yellowfin Tuna and Bigeye Tuna (total combined live weight) is limited to a
seasonal catch of 2% of the total live weight of Skipjack Tuna taken, and a trip limit of
50% of the skipjack live weight;

Blue and Black Marlin must be recorded and returned to the sea, whether live or
dead;

a maximum trip limit of 20 sharks (shark carcasses must be landed with fins
attached);

all purse seine operators must complete the PS01 Australian Purse Seine Daily
Fishing Log.
Management changes in 2012

in the ESTF, restrictions on catch of Yellowfin Tuna and Bigeye Tuna were replaced
with the requirement that catch of Albacore Tuna, Bigeye Tuna, Broadbill Swordfish,
Striped Marlin and Yellowfin Tuna must not be taken unless in accordance with the
Eastern Tuna and Billfish Fishery Management Plan 2010 (must be covered by
quota).

In the WSTF, a carrier vessel may only receive Skipjack Tuna when in port and prior
reporting requirements also apply. Fishing vessels in both the ESTF and WSTF
continue to have the requirement that they must not tranship Skipjack Tuna or carry
any fish on board that was taken by another vessel, unless authorised by AFMA.
Proposed future management changes
AFMA proposes to implement the following management arrangements in the STF:

A legally binding Fish Aggregation Device management plan.

The prohibition of purse seine net setting around Whale Sharks and Cetaceans, and
release requirements for any incidental catches of these species.
1.3 Fishing methods
The principal method used to commercially take Skipjack Tuna is purse seine fishing.
Purse seine
4
Purse seining is a method in which a large net is used to encircle surface schools of
pelagic fish. When deployed, a purse seine net extends like a curtain from its float line
on the surface to a depth of 80 to 350 metres. The purse line (heavy wire warp) runs
through purse rings attached to the footrope of the net. The net is deployed from the
purse seine vessel using either a drogue (sea anchor) or powerful skiff to hold one end
in position, while the vessel steams around the school of fish, releasing the rest of the
net. The Master finishes shooting the net close to the other end so that the gap can be
closed quickly (pursing the net), thus capturing the school of fish (Figure 1). For Skipjack
Tuna, the net is gradually hauled on board, concentrating the fish so that they can be
brailed (scooped) on board.
Purse seining is selective both by use and design. Given the use of accurate echo
sounders, spotting planes and an increasing knowledge of species behaviour, skippers
are usually able to identify the total weight of fish in a school, and estimate the individual
fish sizes. As uniform schools of fish are targeted, the purse seine method is considered
to be a highly size and species selective method. Furthermore, although purse seining is
an ‘active’ fishing method, minimal habitat impacts occur as no contact is made with the
substrate.
Figure 1: Purse seine fishing method (Kailola et al, 1993)
Pole and line
Pole and line fishing is also used to target Skipjack Tuna. This method is covered under
the WTBF and ETBF Strategic Assessments.
1.4 Fishing areas
The ESTF extends from Cape York, Queensland, to the South Australian/Victorian
border and includes waters around Lord Howe and Norfolk Island, and the high seas
area under the region of concern of the Western and Central Pacific Fisheries
Commission (WCPFC).
5
The WSTF extends west from Queensland’s Cape York Peninsula to the South
Australian/Victorian border. It also includes waters around Christmas Island and the
Cocos (Keeling) Islands and a high seas fishing zone.
Together the ESTF and WSTF cover the entire Australian Fishing Zone and adjacent
High Seas. The areas of the ESTF and WSTF are detailed on the AFMA website.
For more information on where effort is concentrated, see Section 4.4: Spatial
issues/trends).
1.5 Allocation between sectors
There are currently a total of 32 Commonwealth tuna purse seine permits in the fishery.
The permits are owned by 18 permit holders, of whom seven hold permits for both the
ESTF and WSTF. Table 1 shows the number of active fishing vessels in the ESTF and
WSTF.
Table 1: Number of domestic vessels recording purse seine Skipjack Tuna catch since
2004
Year
Eastern Skipjack Tuna
Fishery
Western Skipjack Tuna Fishery
2004
3
1
2005
-
-
2006
2
3
2007
-
1
2008
-
2
2009
-
2
2010
-
-
2011
-
-
2012
-
-
Skipjack Tuna can be taken, and has been taken in small amounts in other
Commonwealth managed fisheries, such as the Eastern Tuna and Billfish Fishery and
Western Tuna and Billfish Fishery, by longline and minorline methods. See section 4.1;
Total catch of target species for details.
Allocation for the take of Skipjack Tuna by State operators are as follows:
o
New South Wales operators can take unlimited quantities of Skipjack Tuna inside
three nautical miles using any fishing method.
o
Tasmanian operators are allowed to take up to 10 fish or 40kg, whichever is
greater, of any one, or a combination of Skipjack Tuna Albacore Tuna, Longtail
Tuna and Ray’s Bream per trip.
6
o
Victorian and South Australian operators can take up to 10 fish of any one, or a
combination of Skipjack Tuna, Albacore Tuna, Longtail Tuna and Pomfrets per
trip.
o
Western Australian operators can take up to 10 fish of any one, or a combination
of Skipjack Tuna, Albacore Tuna and Longtail Tuna
o
Northern Territory operators can take up to 10 fish of any one, or a combination
of Skipjack Tuna, Albacore Tuna or Pomfrets per trip.
Recreational anglers in New South Wales, Queensland, Western Australia and South
Australia have unlimited access to Skipjack Tuna. A possession limit of 30 non-managed
fish (including Skipjack Tuna) applies in the Northern Territory and a combined
possession limit of 45 scalefish (excluding baitfish, Redbait, Jack Mackerel and Blue
Mackerel) exists in Tasmania.
1.6 Governing legislation/fishing authority
All Commonwealth fisheries are managed under the Fisheries Management Act 1991.
The ESTF and WSTF are currently managed through a permit system. AFMA issues
Fishing Permits to operators on an annual basis. The fishing season extends from 1 July
to 30 June each year.
Australian commitments and obligations for both the Indian Ocean Tuna Commission
(IOTC) and the Western Central Pacific Fisheries Commission (WCPFC) are
implemented through conditions on permits and the Fisheries Management (International
Agreements) Regulations 2009.
1.7 Status of export approval under the Environment Protection
and Biodiversity Conservation Act 1999
In February 2012, the Delegate of the then Minister for Sustainability, Environment,
Water, Population and Communities amended the list of exempt native specimens to
include product from the STF for a period of nearly five years until until
30 November 2016, allowing export of product derived from the fishery. A copy of the
letter to AFMA, informing of this decision and the associated recommendations on the
ecologically sustainable management of the fishery, is located at: Skipjack Tuna Fishery.
2 Management
2.1 Changes to management
There have been no changes made to the management regime that may affect the
assessment of the fishery against the criteria, on which the EPBC Act decisions are
based, since the accreditation of the STF in 2012.
The ESTF and WSTF continue to be managed through an annual permit system. AFMA
allocated Statutory Fishing Rights under the ETBF and WTBF Management Plans in
May 2011.
7
Please refer to Section 1.2 of this report for further information regarding recent changes
in management arrangements and permit conditions.
2.2 Performance of the fishery against objectives, performance
indicators and performance measures
AFMA measures each Commonwealth fishery against (where relevant) the adherence
to, and implementation of, management arrangements and the Management Plan,
Bycatch and Discards Workplan, Harvest Strategy, and the Ecological Risk Assessment.
In 2012 the STF met all the above-mentioned performance measures.
2.3 Compliance risks present in the fishery and actions taken to
reduce these risks
Compliance risks
The unique and dynamic nature of fisheries presents great challenges to the effective
management of risk. In the fisheries compliance context, risk equates to; the failure of
fishing operators to comply with fisheries management arrangements and/or fishing
permit/concession conditions. AFMA’s Centralised Compliance Program is a risk-based
compliance methodology program. While AFMA Compliance has an education and
liaison role, the goal of the Centralised Compliance Program is to have a targeted
approach, to facilitate voluntary compliance with the fishing industry. AFMA Compliance
conducts an assessment of all risks to compliance each financial year across the major
Commonwealth fisheries, to direct resources towards any high risks that are identified.
Compliance management tools
To address these risks, AFMA’s Compliance Program contains seven main elements:
Vessel Monitoring System (VMS)
VMS is used to monitor fishing operations and the movement of boats in and out of
ports. At AFMA, vessel tracks are displayed as plots on a digitized marine chart and can
be automatically cross referenced against spatial rules set in the fishery. Through the
use of sophisticated software, any fishing vessel activity of interest can trigger a variety
of pre-programmed alerts for Fisheries Officers.
Vessel Inspections
Random and targeted, in-port vessel inspections are to be carried out on active boats in
the fishery during the year. Additional inspections may be carried out on targeted vessels
if intelligence indicates further attention is warranted.
Fish Receiver Inspections
Regular inspections of fish receiver premises will be carried out during the year.
Additional inspections may be carried out on targeted receivers if intelligence indicates
further attention is warranted.
At-Sea Inspections
Each year, AFMA determines an appropriate number of sea patrol days to be
undertaken in Commonwealth waters.
Aerial Surveillance
8
Each year, AFMA determines an appropriate number of aerial surveillance flights to
detect offences particularly related to the Threat Abatement Plan for Seabirds (eg: use of
tori lines). Intelligence reports
State Fisheries Officers submit intelligence reports to AFMA outlining any suspected
breaches or significant information concerning the fishery, that they obtain while working
in the field.
Information Program
Centralised Compliance Officers maintain a client liaison role to gauge operator
response to compliance. Centralised compliance provides fishers and processors with
regular feedback on the level of compliance with the management arrangements.
2.4 Consultation processes
AFMA actively involves a wide range of stakeholders in the process of developing and
implementing fisheries management arrangements. This approach is supported by
specific consultative processes which are embodied in the Authority’s governing
legislation and undertaken as part of effective fisheries management practice.
Australia is a member of the IOTC for highly migratory fish stocks and therefore, any
conservation and management measures implemented by the IOTC Commission, are
binding. The AFMA Commission, the Tropical Tuna Management Advisory Committee
(TTMAC) and IOTC (and its science and compliance committees), are all involved in
determining management measures for the fishery.
TTMAC is the key advisory committee for management of the domestic fishery. The
TTMAC membership is drawn from AFMA, scientific agencies, an environment/
conservation member, industry representatives, and a recreational fishing member.
Invited participants from industry, the recreational fishing sector and State government
are also permanent observers on the TTMAC. Agencies such as the Department of
Agriculture, Fisheries and Forestry (DAFF), the Department of Sustainability,
Environment, Water, Population and Communities (SEWPaC) and the Australian Bureau
of Agricultural and Resource Economics and Sciences (ABARES) have attended
meetings as observers.
The Tropical Tuna Resource Assessment Group (TTRAG) is the key research and
scientific committee for management of the domestic fishery. The TTRAG membership is
drawn from AFMA, scientific agencies, a conservation Non-Government Organisation
(NGO), the pelagic longline sector of industry, the recreational fishing sector and State
fisheries. Agencies such as DAFF, SEWPaC and ABARES have attended meetings as
observers. This committee, in-part, provides advice to the AFMA Commission regarding
the status of the target species stocks in Australia and the Pacific region, and is the key
group in implementing the Harvest Strategy Policy.
Tropical Tuna Management Advisory Committee
Tropical Tuna Resource Assessment Group
2.5 Description
arrangements
of
cross-jurisdictional
management
The Australian and State/Territory governments have negotiated Offshore Constitutional
Settlement (OCS) arrangements, which rationalise management, generally on a species
basis. Under the terms of these arrangements, the States and the Northern Territory
9
generally manage coastal and slow moving species in the inshore areas of the AFZ,
while the Australian Government manages deepwater and migratory species.
The Australian Government has reached agreement under the OCS, on the jurisdiction
of commercial tuna fisheries with the states and the Northern Territory. Under these
agreements, the Australian Government manages commercial fishing for tuna and tunalike species between the shoreline and three nautical miles out from the coast. NSW
manages tuna and tuna-like species in the area of their jurisdiction, between the
shoreline and three nautical miles out from the coast. This means that while State
operators in other States and the Northern Territory, are limited under the OCS to only a
bycatch of tuna and tuna-like species taken in the ESTF, NSW State operators are
limited by NSW Fisheries legislation inside three nautical miles.
The ESTF and WSTF are also subject to management arrangements that are
implemented in the WCPFC and IOTC respectively. These management arrangements
are explained further in Section 2.6 of this report.
2.6 Compliance with threat abatement plans, recovery plans
and domestic and international agreements
Domestic recovery plans
As Skipjack Tuna in the ESTF and WSTF is currently assessed as not overfished or
subject to overfishing (ABARES, 2012), there are no specific threat abatement or
recovery plans implemented in this fishery. However, Australia is an active Member of
the IOTC and WCPFC, and is therefore bound to the conservation and management
measures (CMMs) adopted by those Regional Fisheries Management Organisations
(RFMOs), in relation to Skipjack and other tuna purse seine fisheries.
Pacific Ocean
Australia has been an active participant in the WCPFC since it was established in 2004.
The main objective of the WCPFC is to ensure, through effective management, the longterm conservation and sustainable use of highly migratory fish stocks in the Western and
Central Pacific Ocean (WCPO) in accordance with the United Nations Convention on the
Law of the Sea (UNCLOS) and the United Nations Fish Stocks Agreement (UNFSA).
Skipjack Tuna is a key species managed by the WCPFC. The WCPFC aims to allow for
the control of regional levels of fishing activities and a regional approach to monitoring,
data collection, research and assessment.
Australia complies with the convention through incorporating provisions of the WCPFC
CMMs to Skipjack permit conditions, the Fisheries Management (International
Agreements) Regulations 2009, and relevant AFMA policies, procedures and guidelines.
Australia also reports to the WCPFC every year on compliance with each of the CMMs
under Part 2 of the Annual Report to the WCPFC.
Australia actively participates and provides input, data and advice through a series of
forums that aim to exchange information on regional fisheries issues, to ensure regional
fish stocks are managed sustainably. AFMA’s sharing of this information is under
international obligations. Such forums include the South Pacific Forum Fisheries
Committee, and the Oceanic Fisheries Program of the Secretariat of the Pacific
Community.
Indian Ocean
10
Australia is a member of the IOTC, which manages Skipjack Tuna stocks in the Indian
Ocean. The priority for skipjack in the Indian Ocean is to gain a better understanding of
stock structure and status. The IOTC’s Working Party on Tropical Tunas (WPTT)
oversees the status of Skipjack Tuna and other tuna species in the Indian Ocean.
Australia complies with the convention through incorporating provisions of the IOTC
resolutions to Skipjack permit conditions, the Fisheries Management (International
Agreements) Regulations 2009, and relevant AFMA policies, procedures and guidelines.
3 Research and monitoring
3.1 Collaborative research and results
Skipjack Tuna research and stock assessments in the WCPFC and IOTC convention
areas are done at a regional level. Australian scientists actively participate in the
Committees and Working Parties of these RFMOs.
The Standing Committee on Tuna and Billfish (SCTB), under the Secretariat of the
Pacific Community (SPC), provides a forum for scientists and others with an interest in
the WCPO tuna stocks, to meet and discuss scientific issues related to data, research
and stock assessment. The SCTB then provides scientific advice on species stock
status, including Skipjack Tuna, to the WCPFC.
The principal forum for consideration of research on Indian Ocean tuna and billfish
stocks and their associated fisheries, is the IOTC Scientific Committee. The Scientific
Committee draws on the available expertise from the range of member States to provide
advice to the Commission. The Scientific Committee meets prior to the IOTC’s annual
sessions, and reports on findings and makes recommendations to the Commission. The
Scientific Committee administers several working parties, including the Working Party on
Tropical Tuna which includes Skipjack Tuna.
Any research needs of the fishery, if required, are reviewed by the TTMAC Research
Sub-Committee. This process provides for further research into stock assessments,
collection of fishery and biological data, as well as providing an ecological and economic
assessment of the fishery.
When the fishery becomes active, observers undertake biological sampling of target and
bycatch species. As part of its core functions, AFMA also uses the data collected by
observers to assess bycatch species and the impacts of the fishery on the broader
marine environment, and also the effectiveness of management measures.
AFMA annually calls for research applications to address research priorities and gaps in
knowledge. The TTMAC Research Sub-Committee, TTMAC, the AFMA Research
Committee (ARC) and the Commonwealth Fisheries Research Advisory Board
(ComFRAB) assess these applications for funding from the AFMA Research Fund, the
Fisheries Research and Development Corporation (FRDC) and the Fisheries Resources
Research Fund (FRRF).
The fishery has not been active in recent years and there have been no research
projects undertaken for the fishery.
11
3.2 Monitoring programs used to gather information on the
fishery
Fishery information in the STF is collected mainly through the Purse Seine fishing
logbook (PS01A – Purse Seine Daily Fishing Log), and observer data.
While logbook information has proved reasonably reliable for target species, catch
information about byproduct, bycatch and fishing practices has been less reliable. To
address these issues, AFMA has implemented an observer program (for information on
the observer program refer to: Section 3.3: Observer program)
3.3 Observer program
The AFMA observer program places observers on domestic vessels, and if required,
foreign vessels fishing within the Australian Fishing Zone (AFZ), and some adjacent
areas under international arrangements. The requirements and priorities for the
Observer Program for each fishery, are determined by relevant stakeholders and
implemented by the AFMA Observer Program.
AFMA Observers are trained and briefed to collect and verify fishery data on both target
and non-target species. The information collected by observers is extensive and
includes; details of daily fishing operations, the mitigation measures employed and any
non-target species interactions.
4 Catch data
4.1 Total catch of target species
Domestically, Skipjack Tuna has historically been caught as both target and incidental
catch by commercial fishers in the ETBF and WTBF. Skipjack Tuna are also caught in a
number of other State and Commonwealth fisheries, however these catches make up a
small component of the total catch. The total Skipjack Tuna catch reported in
Commonwealth logbooks in the period 2000–2012 is shown in Table 2 on the following
page. The bulk of the commercial catch is taken by purse seine or pole and line fishing
methods, with a majority of the catch taken in the WSTF in recent times.
12
Table 2: Estimated catch (kg) of Skipjack Tuna in Commonwealth managed fisheries.
(Note: Prior to 2004/05 the Eastern and Western Skipjack fisheries formed part of the Eastern and Western Tuna and Billfish fisheries respectively)
Commonwealth
Trawl Sector
Eastern Tuna
and Billfish
Eastern
Skipjack Tuna
Great Australian
Bight
Gillnet Hook
and Trap
High Seas Non
Trawl
Southern
Bluefin Tuna
Small Pelagic
Fishery
Western
Skipjack Tuna
Western Tuna
and Billfish
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
-
-
-
-
10
-
-
-
30
-
-
-
90
-
-
195,000
972,080
3,890,896
1,176,739
1,054,708
600,200
184,273
3,078
50,381
13,409
31,141
12,240
3,450
3,146
3,658
-
-
-
-
-
-
-
-
44,000
-
-
-
-
-
-
-
-
-
80
-
-
-
-
-
-
110
-
-
-
-
-
-
21
10
-
-
-
-
104
17
13
401
75
36
8
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
300
8
-
-
330
5
-
-
-
-
-
200
-
-
-
-
-
-
-
-
-
90,000
15,200
-
-
-
-
-
-
-
-
-
-
-
-
446,000
-
877,000
855,000
-
-
-
-
-
9
20
190,115
52
30,038
10
13
9
-
29
5
63
42
13
For more information on interactions with protected species see Section: 6.1 Frequency
and nature of interactions.
4.2 Total catch of target species taken by other fisheries
The Eastern Skipjack Tuna Fishery is within the Pacific Ocean and considered part of
the Western and Central Pacific Ocean Skipjack Tuna stock. The Western and Central
Pacific stock is also caught by other nations and Australia’s catches have been a very
small proportion of the total catch of that stock. The Western Skipjack Tuna Fishery is
within the Indian Ocean and considered part of the Indian Ocean Skipjack Tuna stock.
Australia’s catch is a very small proportion of the total catches of the Indian Ocean stock.
Table 3 shows the estimated Skipjack Tuna catch in tonnes from the area of waters
covered by the WCPFC and IOTC.
Table 3: Regional estimated Skipjack Tuna catch since 2000 from WCPFC and IOTC data.
Year
Western and Central Pacific
Ocean
(tonnes)
Indian Ocean
(tonnes)
2000
1,145,613
424,220
2001
1,041,466
419,102
2002
1,222,323
486,625
2003
1,223,454
486,094
2004
1,308,800
461,448
2005
1,378,374
540,389
2006
1,484,948
617,198
2007
1,650,123
461,880
2008
1,647,371
455,451
2009
1,799,991
444,839
2010
1,688,473
433,608
2011
1,557,588
397,218
4.3 Catch of byproduct and bycatch species
Australian purse seiners only target free-swimming schools dominated by Skipjack Tuna.
Reports from canneries, ABARES studies and AFMA logbook data indicate that the
landings of species other than skipjack are extremely low (BRS, 2002). Table 4 shows
the fish bycatch as reported in AFMA logbooks. Purse seiners in the STF may also
catch sharks and, very rarely, seals and manta rays (both of which are easily released
before the net is retrieved). There has been no recorded bycatch in the Skipjack Tuna
purse seine fishing (the SKTF) since 2004/05 when catches were recorded separately
from the ETBF and WTBF.
14
4.4 Observer data
No recent observer data is available for the STF due to the lack of effort and catch in the
fishery.
4.5 Spatial issues/trends
Skipjack Tuna taken in the main fishing grounds off southern Australia are considered to
be at the fringe of the species’ generally equatorial distribution and is extremely variable.
As skipjack do not spawn in waters cooler than 25°C, skipjack off southern NSW and
Tasmania must have recruited from lower latitudes.
The most important determinants of annual abundance are considered to be sea surface
temperature and the availability of prey species. The local abundance of prey is linked to
warm eddies and oceanic fronts generated by the East Australian and Leeuwin Currents.
Such conditions are, in turn, influenced by broad-scale oceanographic events such as El
Nino Southern Oscillation episodes.
Due to the lack of activity currently in the STF, there is no recent spatial catch and effort
information from the fishery. Figure 2 below shows the relative fishing intensity in the
STF between 2006 and 2009 (Source: 2009 BRS Status Report).
Figure 2: Generalised fishing areas in the domestic Skipjack Tuna Fishery (BRS 2009)
15
4.6 Effort data
Effort within the Skipjack Tuna Fishery has been very low since 2000, with generally less
than 50 purse seine shots occurring in either sector since this time, and generally no
effort in the Eastern area since 2006.
5 Status of target stock
5.1 Resource concerns
The Skipjack Tuna are highly migratory and internationally managed by IOTC and
WCPFC, therefore it is important to note that any assessment of resources is based on
the IOTC & WCPFC assessments (See Section 5.2: Stock assessments and recovery
strategies)
Table 4: ABARES Fishery Status Report 2011 results for Skipjack Tuna in the Indian
Ocean and Western and Central Pacific Ocean (Source: ABARES, 20121)
Indian Ocean
Not overfished and overfishing is not occurring
in the Indian Ocean
Western
and
Central Pacific
Ocean
Not overfished and overfishing is not occurring
in the Western Central Pacific Ocean
5.2 Stock assessments and recovery strategies
Indian Ocean
The recent declines in catches are thought to be caused by a recent decrease in purse
seine effort, as well as due to a decline in CPUE of large Skipjack Tuna in the surface
fisheries. There remains considerable uncertainty in the assessment, and the range of
runs analysed, illustrate a stock status range of between 0.73–4.31 of SB2011/SBMSY
based on all runs examined. The IOTC Working Party on Tropical Tuna does not fully
understand the recent declines of pole-and-line catch and CPUE, which may be due to
the combined effects of the fishery and environmental factors affecting recruitment or
catchability. Catches in 2010 (428,000 t) and 2011 (398,240 t) as well as the average
level of catches of 2007–2011 (435,527 t) are below MSY targets though may have
exceeded them in 2005 and 2006.
Western and Central Pacific Ocean
Fishing is having a significant impact on stock size, especially in the western equatorial
region, and can be expected to affect catch rates. The stock distribution is also
influenced by changes in oceanographic conditions associated with El Niño and La Niña
events, which impact on catch rates and stock size. Additional purse-seine effort will
yield only modest gains in long-term Skipjack Tuna catches and may result in a
corresponding increase in fishing mortality for Bigeye Tuna and Yellowfin Tuna.
If recent fishing patterns continue, catch rate levels are likely to decline and catch should
decrease as stock levels are fished down to MSY levels. Due to the rapid change of
1
ABARES (2012) “Fishery status reports 2011: status of fish stocks managed by the Australian Government”. Australian
Bureau of Agriculture and Resource Economics and Sciences. 440pp.
16
fishing mortality and biomass indicators relative to MSY in recent years, increases of
fishing effort should be monitored.
Catches in 2010 were roughly 1.556 million mt, the second highest recorded, and below
the record high catch of 1.608 million mt in 2009. Equilibrium yield at the current F is
about 1.14 million mt. This is about 76% of the MSY level. The assessment continues to
show that the stock is currently only moderately exploited (Fcurrent/FMSY = 0.37) and
fishing mortality levels are sustainable. However, there is concern that high catches in
the equatorial region could result in range contractions of the stock, thus reducing
skipjack availability to higher latitude (e.g. Japan, Australia, New Zealand and Hawaii)
fisheries.
6 Interactions with protected species
6.1 Frequency and nature of interactions
There are some protected species listed under Part 13 of the Environment Protection
and Biodiversity Conservation Act 1999 (EPBC Act) that may interact with the Skipjack
Tuna Fishery. There was no activity and no interactions in 2012. For more information
and the past year’s interactions please visit AFMA’s Protected Species section of the
website.
6.2 Management action taken to reduce interactions
All interactions with listed protected species must be reported by fishers in their logbook
and submitted to AFMA. AFMA provides quarterly summary reports of all interactions in
Commonwealth fisheries, on behalf of fishers, to SEWPaC. These reports can be
accessed on the AFMA website. AFMA also conduct educational programs held in
ports, to remind concession holders of their obligations in relation to interactions with
protected species. These educational programs were run in 2009, 2010, 2011 and
2012. AFMA has received very positive feedback from industry on these educational
programs.
7 Impacts of the fishery on the ecosystem
7.1 Results of the Ecological Risk Assessments
A key component in AFMA’s move towards Ecosystem Based Fisheries Management
has been the undertaking of Ecological Risk Assessments (ERA) for all AFMA managed
fisheries. By assessing the impacts of fishing on all parts of the marine environment, the
ERAs encompass an ecosystem-based assessment approach. The ERAs will help to
prioritise research, data collection monitoring needs and management actions for
fisheries and ensure that they are managed both sustainably and efficiently.
The ERA process for Skipjack Tuna was completed in 2010. A total of 25 species were
found to be at high risk to the effects of the Australian skipjack fisheries following a Level
2 Residual Risk Assessment. These species are shown in Table 5.
Table 5. list of species found to be at high risk to the effects of skipjack fisheries following
a Level 2 Residual Risk Assessment.
17
Scientific Name
Common Name
Arctocephalus pusillus doriferus
Australian Fur Seal
Indopacetus pacificus
Longman's Beaked Whale
Delphinus capensis
Common dolphin, long-beaked
Feresa attenuata
Pygmy Killer Whale
Globicephala macrorhynchus
Short-finned Pilot Whale
Globicephala melas
Long-finned Pilot Whale
Grampus griseus
Risso's Dolphin
Hyperoodon planifrons
Southern Bottlenose Whale
Kogia simus
Dwarf Sperm Whale
Lagenodelphis hosei
Fraser's Dolphin
Lagenorhynchus cruciger
Hourglass dolphin
Lissodelphis peronii
Southern Right Whale Dolphin
Mesoplodon bowdoini
Andrew's Beaked Whale
Mesoplodon densirostris
Blainville's Beaked Whale
Mesoplodon gingkodens
Gingko Beaked Whale
Mesoplodon grayi
Gray's Beaked Whale
Mesoplodon hectori
Hector's Beaked Whale
Mesoplodon layardii
Strap-toothed Beaked Whale
Mesoplodon mirus
True's Beaked Whale
Orcinus orca
Killer Whale
Pseudorca crassidens
False Killer Whale
Stenella coeruleoalba
Striped Dolphin
Tursiops aduncus
Indian Ocean bottlenose dolphin
Tursiops truncatus
Bottlenose Dolphin
Ziphius cavirostris
Cuvier's Beaked Whale
7.2 Nature of impacts on the ecosystem
Fishing methods used in the STF (described in Section 1.3) are pelagic and do not
interact with the benthos.
Purse seine fishing for Skipjack Tuna around FADs in the broader WCPO and Indian
Ocean may have a minor impact on the ecosystem. FADs have been linked to changes
in migratory patterns, growth rates and predation rates of FAD-aggregating pelagic
species such as Skipjack Tuna, as well as entanglement of sea turtles.
Australia has implemented a ban on the use of FADs north of 20°S in the ESTF,
consistent with WCPFC management measures to help mitigate these ecosystem
18
effects. Australia has developed a FAD management plan in accordance with IOTC
resolution 12/08 which will be implemented in the future.
SPC completed a food web study on the tuna ecosystem of the WCPO in 2002. Data
from this study was used in the Ecopath with Ecosim (EwE) bio-dynamic ecosystem
model to allow better modelling and assessment of the fishing impacts on the ecosystem
and tuna stocks.
The United Nations have encouraged their members to use this modelling system in
fisheries management as it can be used to:
•
Evaluate ecosystem effects of fishing;
•
Explore management policy options;
•
Analyse the impact and placement of marine protected areas;
•
Predict movement and accumulation of contaminants and tracers; and
•
Model the effects of environmental changes.
Impacts on food chains - structures & productivity/flows
Australia provides data to SPC to conduct stock assessments on Skipjack Tuna in the
WCPO. One of the aims of the SPC data collection program is to identify species
associations and relationships through analysing gut content of species caught in the
fishery. This program assists in identifying the impact of the fishery on the food chain.
Assessments using models such as the EwE have demonstrated that purse seine fishing
in the Pacific Ocean lowers the biomass similarly across trophic levels, whereas
methods such as longlining have a greater effect on lowering biomass in the upper
trophic levels only. A study in 2004, demonstrated that the numbers of Skipjack Tuna in
the Pacific Ocean declined due to targeted purse-seine fishing, however the effect is
buffered as their predators, such as Bigeye Tuna, are caught by the longline fishery.
Therefore overall, purse seine activity is thought to have minimal effect on the food chain
when balanced by longline fishing.
Impacts on the physical environment - physical habitat and water quality
The STF is not considered to have a significant impact on physical habitat and water
quality. Fishing methods are pelagic and have no direct interaction with the benthos.
Operators are bound by Marine Pollution (MARPOL) regulations, which prohibit the
disposal of garbage from ships and boats. These regulations require fishing vessels to
make every effort to retrieve all lost or damaged fishing gear.
7.3 Management action taken to reduce impacts
Australia has implemented the following management measures to ensure that
significant damage to the ecosystem does not arise from the potential impacts of
Skipjack Tuna purse seine fishing:
•
ensuring the purse seine gear allows non-target species to escape or be assisted
to escape;
•
limiting effort in the fishery by placing a limit on the number of Skipjack Tuna
permits available;
19
•
•
•
•
collecting data on all species caught in the fishery, and provision of this data to
SPC to incorporate into regional stock assessments;
developing an Ecological Risk Assessment and Ecological Risk Management
report for the Skipjack Tuna fishery to identify areas of concern;
banning the use of FADs north of 20°S in the ESTF; and
marine protected areas within the area of the fishery, including the Great Barrier
Reef Marine Protected Area, the Great Australian Bight Marine Park and
Ningaloo Marine Park.
The results and effectiveness of these actions are very hard to measure due to the
limited to no effort in the STF over recent years. However, these measures will prevent
serious damage to the ecosystem if the effort in the fishery is to increase.
8 Progress in implementation of recommendations
resulting from the previous assessment of the fishery
8.1 Progress in implementing each recommendation
Recommendations to the Australian Fisheries Management Authority
(AFMA) on the ecologically sustainable management of the WTBF
Performance
Criteria
RECOMMENDATIONS
Recommendation 1:
Operation of the Skipjack
Tuna Fishery will be carried
out in accordance with the
management arrangements
in force under the Fisheries
Management Act 1991.
Recommendation 2:
The Australian Fisheries
Management Authority
(AFMA) to inform the
Department of Sustainability,
Environment, Water,
Population and Communities
(DSEWPaC) of any
proposed substantive
changes to the Skipjack
Tuna Fishery management
arrangements that may
affect the criteria on which
Environment Protection and
Biodiversity Conservation
Act 1999 decisions are
Level of Achievement as at
2012
Deadline
Ongoing
AFMA continues to manage the Skipjack
Tuna Fishery in accordance with the
management arrangements in force under
the Fisheries Management Act 1991.
AFMA continues to inform DSEWPaC of
proposed substantiate changes to the
Skipjack Tuna Fishery management
arrangements that may affect the criteria
on which Environment Protection and
Biodiversity Conservation Act 1999
decisions are made.
Ongoing
20
Performance
Criteria
made.
Recommendation 3:
AFMA to produce and
present reports to
DSEWPaC annually, as per
Appendix B to the Guidelines
for the Ecologically
Sustainable Management of
Fisheries – 2nd Edition.
Recommendation 4:
Following the 2012 review,
AFMA to amend the Skipjack
Tuna Fishery Harvest
Strategy to refine the
decision rules to implement
management responses
when trigger levels are
exceeded.
Recommendation 5:
AFMA to advise DSEWPaC
if use of Fish Aggregation
Devices commences in the
fishery. Prior to any future
use of these devices in the
fishery, AFMA to ensure that
appropriate management
arrangements are in place to
ensure their sustainable use.
Level of Achievement as at
2012
Deadline
Ongoing
AFMA continues to produce and present
reports to DSEWPaC (such as this report)
annually, as per Appendix B to the
Guidelines for the Ecologically
Sustainable Management of Fisheries –
2nd Edition.
The review of the Skipjack Tuna Fishery
Harvest Strategy has not yet been
completed.
There is a requirement for Australia to
nominate a catch limit for input to WCPFC
management measures, to manage
Skipjack Tuna at a whole of stock level in
the Western Central Pacific Ocean.
However, if catch and effort intensity
changes significantly, AFMA will review
the issues and implement the appropriate
alternative management regimes. When
binding catch limits for Skipjack Tuna are
agreed at either IOTC or WCPFC, these
will be implemented into Australia’s
management arrangements.
AFMA has developed a Fish Aggregation
Device (FAD) Management Plan for
Australia’s Tropical Tuna Fisheries (not a
statutory management plan) in
accordance with IOTC Resolution 12/08
(Procedures on a Fish Aggregating
Devices (FADs) Management Plan). The
FAD plan will be submitted to the IOTC.
Ongoing
AFMA will notify SEWPaC formally if any
vessels fishing in the Skipjack Tuna
fisheries intend to utilize FADs
21
Performance
Criteria
Recommendation 6:
Following the 2012 review of
the Skipjack Tuna Harvest
Strategy, AFMA to revise the
Ecological Risk Management
Report for the Skipjack Tuna
Fishery, to include an
appropriate catch or effort
level trigger, above which
management responses,
including a review of
interactions and the
development of a bycatch
and discard workplan for the
fishery, will be implemented.
Level of Achievement as at
2012
Deadline
If catch and effort intensity changes
significantly, AFMA will review the issues
and implement the appropriate alternative
management regimes. When binding
catch limits for Skipjack Tuna are agreed
at either IOTC or WCPFC these will be
implemented into Australia’s management
arrangements.
22
Performance
Criteria
Recommendation 7:
The Department of
Agriculture, Fisheries and
Forestry (DAFF) to:
a) in consultation with AFMA,
DSEWPaC and other
relevant government
agencies, continue to take a
proactive role in the Western
and Central Pacific Fisheries
Commission (WCPFC) and
the Indian Ocean Tuna
Commission (IOTC) to
improve the effectiveness of
both organisations in
managing target, byproduct,
bycatch (including protected)
species;
b) encourage appropriate
conservation and
management measures to
maintain healthy skipjack
stocks; and
c) consider the Skipjack
Tuna Fishery Harvest
Strategy in developing the
whole of government
position for negotiations
related to the skipjack fishery
in both the WCPFC and
IOTC, and to advocate the
Commonwealth Fisheries
Harvest Strategy Policy as
an example of best practice
in setting sustainable catch
levels.
Level of Achievement as at
2012
Australia continues to take a proactive
role in the WCPFC and IOTC to improve
the effectiveness of both organisations
in managing target, byproduct, bycatch
(including protected) species;
encourage appropriate conservation and
management measures to maintain
healthy skipjack stocks; and
consider the Skipjack Tuna Fishery
Harvest Strategy in developing the
whole of government position for
negotiations related to the skipjack
fishery in both the WCPFC and IOTC,
and to advocate the Commonwealth
Fisheries Harvest Strategy Policy
(CHSP) as an example of best practice
in setting sustainable catch levels.
Deadline
Ongoing
23
Summary
As the STF has been inactive there are limited environmental concerns in the fishery.
However, AFMA has addressed, or is currently in the process of addressing some of the
environmental concerns relevant to the fishery.
Efforts to minimise the impacts from fishery interactions with TEP species have
continued with initiatives such as the development of a Fish Aggregation Device
management plan.
AFMA continues to contribute to RFMO negotiations as a member of the Australian
delegation to key meetings of the IOTC and WCPFC. This effort will continue to be
directed towards developing and implementing effective regional management strategies
for highly migratory fish stocks.
24