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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