a report to environment australia on sustainable ... · figure a2-2 areas permanently closed to...

EC Trawl Fishery Submission.doc

ECOLOGICAL ASSESSMENT OF

THE QUEENSLAND EAST COAST OTTER TRAWL FISHERY

A report to Environment Australia on sustainable management of a multi-species macro-scale fishery ecosystem

Compiled by

Brad Zeller, Queensland Fisheries Service

with contributions from Malcolm Dunning, Lew Williams, Clare Bullock, Eddie Jebreen,

Mark Lightowler, Wez Norris, Stephanie Slade, Bev Tyrer, Mike Dredge, and Clive Turnbull,

Queensland Fisheries Service.

Tony Courtney, Neil Gribble, Michael O’Neill and James Haddy, Agency for Food and Fibre Sciences

and Rod Supple

Queensland Boating and Fisheries Patrol


Document Description i Executive Summary iii Introductory Description of the Fishery 5 Introduction 5

Species targeted and retained by the fishery 5

Geographic Extent of the Fishery 6

Fishery Sectors 7

Queensland Government Legislation and Management 10

The Trawl Plan 10

Licensing 11

Fishing Method 12

Recreational Catch 14

Indigenous Catch 14

Markets 14

The environment likely to be affected by the fishery 14

Assessment of the Management Regime Against General Requirements of the EA Guidelines 11

Assessment of the Management Regime Against Principle 1 20 Guideline 1.1.1 20

Guideline 1.1.2 28

Guideline 1.1.3 33

Guideline 1.1.4 34

Guideline 1.1.5 36

Guideline 1.1.6 37

Guideline 1.1.7 39

Guideline 1.1.8 42

Guideline 1.1.9 49

Guideline 1.2.1 50

Guideline 1.2.2 50

Assessment of the Management Regime Against Principle 2 52 Guideline 2.1.1 52

Guideline 2.1.2 55

Guideline 2.1.3 56

Guideline 2.1.4 59


Guideline 2.1.5 59

Guideline 2.1.6 59

Guideline 2.2.1 60

Guideline 2.2.2 63

Guideline 2.2.3 67

Guideline 2.2.4 67

Guideline 2.2.5 69

Guideline 2.2.6 69

Guideline 2.3.1 71

Guideline 2.3.2 74

Guideline 2.3.3 78

Guideline 2.3.4 79

Guideline 2.3.5 80

References 82

Acronyms and Abbreviations 88

Appendix 1 Australian distribution of species taken in the fishery

Appendix 2 Summary of Queensland East Coast Trawl Fishery management arrangements, including developmental history

Appendix 3 The environment likely to be affected by the fishery

Appendix 4 Review events under the Trawl Plan

Appendix 5 East Coast Trawl Fishery Logbook (OT07)

Appendix 6 Annual reported catches and days of fishing effort in the ECOTF


List of Figures Figure 1 Area of East Coast Trawl Fishery. 2

Figure 2 Distribution of tiger prawn and endeavour prawn catches in the fishery in 2000. 3

Figure 3 Distribution of red spot prawn and blue-legged king prawn catches in the fishery in 2000. 4

Figure 4 Distribution of banana prawn catches in the fishery in 2000. 4

Figure 5 Distribution of eastern king prawn catches in the fishery in 2000. 5

Figure 6 Distribution of saucer scallop catches reported in the fishery in 2000. 5

Figure 7 Quad gear, an example of a configuration used in the East Coast Otter Trawl Fishery 9

Figure 8 Location of sample sites for the LTMP tiger prawn pre-recruit survey 24

Figure 9 Scallop long term monitoring survey sites 26

Figure 10 Annual days fished and fishing vessels in the ECOTF, 1988 to 2001 40

Figure 11 Distribution of turtle recaptures (all species) reported in the ECOTF in 2000 64

Figure 12 Distribution of reported syngnathid catches in the ECOTF 65

Figure 13 Trawl effort in the East Coast Trawl Fishery from March 2000 to July 2001 72

Figure 14 Seagrass probability of occurrence in the Great Barrier Reef World Heritage Area 73

Figure A2-1 Bycatch reduction devices that can be used under the Trawl Plan A2-16

Figure A2-2 Areas permanently closed to trawling A2-19

Figure A2-3 Major seasonal closures A2-20

Figure A3-1 The Great Barrier Reef A3-3


List of Tables Table 1 Active licenses in the ECOTF in 2002 8

Table 2 Compliance in the fishery in 2001 16

Table 3 Stock assessments currently being undertaken 28

Table 4 Management responses appropriate to the spatial structure of principal species 33

Table 5 Annual recorded landings of by-product species in the ECOTF in 2001 44

Table 6 Preliminary estimates for effects on bycatch and target species components of the catch using gear modified with a BRD and TED compared with standard trawl gear.. 53

Table 7 Recorded fisheries offences for the ECOTF 2001 58

Table 8 Sea turtles that occur in the ECOTF area and their listing status under the EPBC Act 1999 61

Table 9 Estimated average sea turtle catches in the Qld ECTF 1991- 1996 63

Table 10 Recorded sea snake species captured in the banana and tiger/endeavour prawn trawl sectors prior to mandatory use of bycatch reduction devices in the ECOTF. 66

Table 11. Areas trawled in the ECOTF in 2001 78

Table A1-1 Australian Distribution of major target and by-product species taken in the Queensland East Coast Otter Trawl Fishery A1-1

Table A2-1 Issues raised at public meetings regarding the Draft Management Plan fo the QECTF A2-9

Table A2-2 Principal and permitted species taken in the ECOTF, maximum posession limits, legal size limits and other restrictions where applicable A2-15

Table A2-3 Enforcement activities in the ECTF, July 2000 to November 2000 A2-29


Table A4-1 Review events and data sources for indicators currently required under Schedule 2 of the Trawl Plan A4-1

Table A5-1 East Coast Trawl Fishery Logbook (OT07) A5-1

Table A6-1 Annual landings of major species groups in the ECTF A6-1


Page i

Document Description Under the Commonwealth’s Environmental Protection and Biodiversity Conservation Amendment (Wildlife Protection Act) 2001, to be exempt from export controls for native species harvested in a fishery, management agencies must demonstrate that fisheries management regimes comply with the objectives of ecologically sustainable development. Environment Australia has prepared publicly available guidelines, ‘Guidelines for the Ecologically Sustainable Management of Fisheries’ (The Guidelines) on which management agencies are required to base their submissions.

This document is the Queensland Government’s submission to Environment Australia for the East Coast Otter Trawl Fishery (ECOTF). It has been prepared by the Queensland Fisheries Service (QFS), with the assistance of fishery researchers of the Agency for Food and Fibre Sciences (AFFS), and the Queensland Boating and Fisheries Patrol, Department of Primary Industries. The QFS manages the fishery in Queensland waters under the Fisheries Act 1994 and in Commonwealth waters adjacent to the Queensland coast under an arrangement in Part 5 of the Fisheries Management Act 1991 (Commonwealth).

The document is divided into sections based on these guidelines, preceded by an introductory description of the fishery. More detailed descriptions of various aspects of the fishery are presented in the Appendices.

For the purposes of ecological assessment of Queensland-managed trawl fisheries, the Queensland East Coast Trawl Fishery (QECTF) has been divided into four components:

• The East Coast Otter Trawl Fishery (ECOTF)

• The River and Inshore (Beam) Trawl Fishery

• The Moreton Bay Trawl Fishery

• The Finfish (stout whiting) Trawl Fishery Unless otherwise indicated this document relates to the ECOTF.

The assessment of the ECOTF deals with the operations of ‘T1’, ‘T2’ and ‘M1’ fishing vessel licences endorsed to use otter trawling gear (excluding operations in Moreton Bay). An assessment on incidental take of syngnathids in the ECOTF has been submitted to Environment Australia as a condition of a Declared Specimens Permit and will also be part of the ECOTF assessment. The stout whiting, Moreton Bay and river/inshore beam trawl fisheries will be dealt within separate assessment reports because of the different management regimes applying in these fisheries.

This document should be read in conjunction with relevant Queensland fisheries legislation in order that all management arrangements applied to the fishery are fully considered. Specific mention of the following terms: ‘Fisheries Act’, ‘Regulations’, and ‘Trawl Plan’ make reference to the following respective Queensland Government legislation:

• Fisheries Act 1994

• Fisheries Regulation 1995

• Fisheries (East Coast Trawl) Management Plan 1999 and its amendments.


Page ii

For further information about this assessment or sustainable management of the fishery, please contact:

Mr Brad Zeller Assessment and Monitoring Unit Queensland Fisheries Service Department of Primary Industries, Queensland GPO Box 46 BRISBANE QLD 4001 Phone 3224 2236 Fax 3224 2805 Email [email protected]


Page iii

Executive Summary The East Coast Otter Trawl Fishery (ECOTF) is a complex multi-species fishery operating in continental shelf waters along the Queensland east coast between approximately Latitude 10°30' S and 28° S. Principal target species are penaeid prawns, saucer scallops, Moreton Bay bugs and squid. However Balmain bugs, barking crayfish, cuttlefish, mantis shrimps1, two species of pipefish, octopus, pinkies and redspot crabs may also be retained as by-product2. Otter trawl methods are used in the fishery, using twin, triple or quad multi-filament nets which pass over the sea bed to harvest demersal species. A variable part of the catch in any “shot” is bycatch and is discarded.

The management regime for the fishery is complex and regularly reviewed to achieve the ecological sustainability of the fishery and to minimize its impacts on the ecosystem. The fishery is managed under the Fisheries Act 1994 through a management plan: the Fisheries (East Coast Trawl) Management Plan 1999 (the Trawl Plan), which was substantially amended in December 2000 and again in 2001. The Trawl Plan and its amendments provide the necessary legal framework to increase the effectiveness of management arrangements for the fishery’s sustainability.

Major sustainability initiatives supported by the Trawl Plan and its amendments include:

• limits on fishing gear and maximum engine power of fishing vessels;

• capping and reducing fishing effort (109,879 days in 1996, reduced to 69,502 days in 2001);

• a voluntary licence buy back and licence surrender removing about 260 licences from the fishery (from 800 boats in 1999 to 540 boats in 2001);

• allocation of a maximum number of fishing nights to individual licensees;

• permanent closure to trawling of 32% of the fishery area in 1999;

• permanent closures to trawling of 50% of the area of the GBRWHA;

• major annual seasonal closures to protect fishery viability;

• a complex array of closures to protect habitats and/or juvenile target species;

• rotational closures within key scallop production areas to maintain viable levels of broodstock;

• seasonal area closures to protect sea turtles during their mating and nesting;

• mandatory use of bycatch reduction and turtle exclusion devices on all nets;

• installation of vessel monitoring system (VMS) technology on all vessels allowing automated monitoring of fishing vessel operations;

• introduction of bycatch and by-product recording in logbooks;

• possession and size limits on several by-product species;

• introduction of sustainability reference systems and review provisions for target species, bycatch and benthic communities; and

• provisions for licence suspension for Serious Fisheries Offences. 1 The intention of regulations resulting from the Permitted Species Review, November 2001 was that further catches of

Mantis Shrimp be restricted to Moreton Bay – where 95% of the catch is taken. 2 Common and scientific names of species which may be retained by the fishery are documented in Appendix 1.


Page iv

Management initiatives require adequate data collection systems to make informed decisions about sustainable production of the fishery. Monitoring by the Queensland Fisheries Service (QFS) includes the mandatory requirement for daily catch and effort reporting by fishers through the CFISH logbook program. Compliance runs and quality control processes are regularly undertaken to improve the accuracy of the information provided to managers and fishery scientists. The QFS also conducts fishery independent long-term monitoring on key principal trawl species (tiger and endeavour prawns, saucer scallops, Moreton Bay bugs and blue swimmer crabs). Fisheries research and monitoring play key roles in seeking to achieve sustainability in the fishery. The DPI Agency for Food and Fibre Sciences (AFFS) is providing high quality advice to management through research projects for:

• estimating and characterising bycatch in various sectors of the fishery, testing the effectiveness of Bycatch Reduction Device (BRD) and Turtle Excluder Device (TED) designs and collection of population parameters for byproduct species;

• assessing effectiveness of on-board devices (eg hoppers) for increased survival of discarded bycatch;

• standardisation of fishing effort to integrate the trawl fleet’s long-term increase in fishing power into catch rate estimates for stock assessments;

• refinement of sustainability reference points for management;

• improved stock assessment methods using Vessel Monitoring System technology;

• developing stock recruitment and spawner level indicators; and

• assessing the effects of fishing effort reduction on target species and fishery ecosystems.

Assessment under The Guidelines for demonstrating the ecological sustainability of the fishery management regime includes marine biodiversity conservation issues included in the EPBC Act 1999. Specific matters to be addressed include assessment of the risk of overfishing and potential for recovery of the fished species, fishery impacts on bycatch and threatened species and ecological communities and the ecosystem in general. Sustainability reference systems continue to be developed to monitor performance towards achieving ESD objectives for the ECOTF. Of significance to this assessment, are current sustainability indicators and reference values linked to review events established under the Trawl Plan. These include:

• limits and reduction of fishing effort in the fishery over time;

• limits for reduction in catch-per-unit effort of target species;

• a limit on capture and mortality of sea turtles; and

• targets for reduction of bycatch and benthos disturbance/removal. Further development of assessment and monitoring processes and where appropriate, refinement of existing sustainability reference systems are providing additional data able to support sustainable management outcomes into the future.


Page 5

Introductory Description of the Fishery

Introduction • The East Coast Otter Trawl Fishery (ECOTF) is a significant component of the

Queensland East Coast Trawl Fishery (QECTF). It is a complex multi-species fishery in inshore and offshore waters along the Queensland east coast between latitude 10°30' S and 28° S and is Queensland’s largest commercial fishery with average annual landings of about 10,000 tonnes.

The fishery is defined by the use of otter trawl gear within designated geographic boundaries. Twin, triple or quad multi-filament nylon nets are used. These nets pass over the sea bed and harvest demersal species. The fishery is managed by the Queensland Fisheries Service under the provisions of the Fisheries (East Coast Trawl) Management Plan 1999 and its amendments (the Trawl Plan).

Recent changes to management arrangements for the QECTF and consequently the ECOTF have significantly improved progress toward achieving ecological sustainability objectives of the fishery and have reduced impacts of trawling activity on the environment. Measures have been implemented by Queensland Government to cap the level of effort in the fishery, to reduce this effort over time and to reduce the area fished. As over 70% of the fishery is within the Great Barrier Reef World Heritage Area (GBRWHA), ensuring ecological sustainability is of particular importance.

The following is a brief description of the fishery; further details are included in the Appendices.

Species targeted and retained by the fishery Principal target species of the ECOTF are penaeid prawns (principally tiger, king and endeavour prawns), saucer scallops, Bay lobsters (Moreton Bay bugs) and squid (principally pencil squid and northern calamary). Balmain bugs, barking crayfish, cuttlefish, two species of pipefish, octopus, pinkies, blue swimmer crabs and redspot crabs may also be retained as by-product. An assortment of other vertebrates and invertebrates are taken as bycatch, however by law they cannot be retained and are discarded. The main species allowed to be retained, and their distribution, are listed in Appendix 1. There are multiple species groups harvested in the ECOTF (Appendix 2: Table A2-2). By weight, prawns make up about 75% of the harvest of the ECOTF, scallop meat 12% and bugs 6%. Crabs, cephalopods, fish, and crayfish make up the remaining catch. Prawns dominate the catch in terms of value. The single most abundant species in the recorded catch is the eastern king prawn from southern Queensland. However, the most valuable element of the total prawn catch is the tiger/endeavour species group, mainly caught in North Queensland.

Most of the target and by-product species have a widespread tropical to sub-tropical Indo-West Pacific distribution. A few species are restricted to northern Australian waters and waters of adjacent tropical islands (e.g. blue endeavour prawns), or are endemic to the Australian east coast with a mainly subtropical – temperate distribution (e.g. eastern king prawns, greasyback prawns and school prawns) (Kailola et al. 1993).


Page 6

Most species are found throughout northern or eastern Australian coastal waters and are sufficiently abundant to support viable fisheries in a number of States and the Northern Territory (Appendix 1).

Geographic Extent of the Fishery The ECOTF covers all tidal waters (excluding estuaries) east of longitude 142º31.89’ E out to the Queensland East Coast Offshore Constitutional Boundary between Cape York and the Qld/NSW border (Figure 1).

Figure 1. Area of the East Coast Trawl Fishery. The ECOTF operates in this area excluding closed waters, estuaries and Moreton Bay.


Page 7

Fishery Sectors The ECOTF is divided into sectors, based on target species composition and /or species distribution. The main fishing sectors are described below.

• Tiger prawns (Penaeus semisulcatus, P. esculentus) and endeavour prawns (Metapenaeus endeavouri, M. ensis). Highest catches for tiger prawns are taken in waters north of Broadsound near Mackay (about 22ºS). Endeavour prawns are taken in waters northward from Cairns (about 17°S). Typically, tiger and endeavour prawns are caught in water depths of less than 20 m (Fig. 2).

•

• •

• Tiger prawn catches • Endeavour prawn catches

• Figure 2. Distribution of tiger prawn and endeavour prawn catches in the fishery in 2000.

•

• Red spot prawns and blue-legged king prawns (P. longistylus, P. latisulcatus) a taken in waters of the Great Barrier Reef lagoon, northward from Mackay (about 21ºS), in water depths of 20-50 m (Fig. 3).

• Banana prawns (P. merguiensis) which are taken in coastal waters, typically in the vicinity of the major estuaries which act as nursery areas for this species, from Cairns (17ºS) south to Bundaberg (25ºS). Banana prawns are rare more than a few kilometres offshore, and are uncommon in water depths of more than about 25 m (Fig. 4).

• Eastern king prawns (P. plebejus), which occur both in inshore and offshore waters. Eastern king prawns are highly migratory, moving from estuarine nursery areas to deep offshore waters, and undertake an extensive (up to 1200 km) northward migration. The fishery occurs from the Swain Reefs at the southern end of the Great Barrier Reef (21°S) to the Queensland-New South Wales Border (28°S) in water depths of 10 to 250 m (Fig. 5).


Page 8

• • Figure 3. Distribution of red spot prawn and blue-legged king prawn catches in

the fishery in 2000.

•

• • Figure 4. Distribution of banana prawn catches in the fishery in 2000.

•


Page 9

•

• • Figure 5. Distribution of eastern king prawn catches in the fishery in 2000.

•

• Saucer Scallops (Amusium japonicum balloti), are mainly harvested from Hydrographer’s Passage (about 20.5ºS) in the central Great Barrier Reef lagoon southward to Wide Bay (26ºS), in water depths of 30-50 m (Fig. 6).

• A relatively complex fishery for small prawns, including greasyback prawns (M. bennettae), juvenile eastern king and tiger prawns, and less common species including hardback prawns (Trachypenaeus spp.). This fishery - the bay prawn fishery - largely takes place in estuarine and coastal waters of Moreton Bay and southern Hervey Bay. The fishery occurs in water depths of less than 25 m. The Moreton Bay fishery is reported separately to this assessment.

•

• • Figure 6. Distribution of saucer scallop catches reported in the fishery in 2000.


Page 10

The East Coast Otter Trawl fleet is characterised by a high degree of mobility. Most boats in the fishery operate in more than one sector, and may travel over extensive areas while doing so. Vessels typically hold endorsements to fish in other coastal fisheries such as the reef line, net and crab fisheries. Similar trawl gear is used in the tiger/endeavour and red spot king sectors of the fishery, while there are some modifications made to gear for scallop fishing.

Queensland Government Legislation and Management The Queensland Government is committed to managing fisheries resources according to the principles of Ecologically Sustainable Development. The objectives of the Queensland Fisheries Act are to:

• ensure fisheries resources are used in an ecologically sustainable way;

• achieve the optimum community, economic and other benefits obtainable from fisheries resources; and to

• ensure that access to fisheries resources is fair. Proposed amendments to the objectives of the Act are currently being considered. Implementation of these amendments will give the Act a greater focus on ESD, including key concepts such as the Precautionary Principle. The Fisheries Act 1994 sets the direction for fisheries management while allowing for flexibility in management through subordinate legislation (Management Plans and Regulations) to deal with specific fishery management needs. The subordinate legislation for the ECOTF is the Fisheries (East Coast Trawl) Management Plan 1999 and its amendments (the Trawl Plan). This plan provides for the sustainability of the species taken and the ecosystems upon which they depend (Anon. 1996). Development of the Trawl Plan has enabled enhanced coordination of management, research and enforcement functions. The Trawl Plan draws together a series of separate arrangements that were previously established to manage the fishery and adds new measures to ensure sustainability (Anon. 1996). As the Trawl Plan has legal status as subordinate Queensland fisheries legislation, material changes to the management regime require parliamentary approval.

The Trawl Plan The objectives of the Trawl Plan are to:

• manage the fishery in a way that gives optimal, but sustainable, community benefit;

• ensure fisheries resources taken in the fishery are taken in an ecologically sustainable way;

• ensure the sustainability of the fishery’s ecological systems;

• provide for an economically viable, but ecologically sustainable, trawl fishery; and


Page 11

• ensure fair access to fisheries resources taken in the fishery, on a sustainable basis, among the following groups and persons in the groups - commercial fishers; recreational fishers; Aboriginal and Torres Strait Islander fishers and other users of the fisheries resources.

The Trawl Plan defines principal species that may be targeted and permitted species that may be taken by trawling and held in possession, and the possession and size limits of these species. Major sustainability initiatives supported by the Trawl Plan include:

• limits on fishing gear and maximum engine power of fishing vessels;

• capping and reducing fishing effort;

• voluntary removal of 260 licences from the fishery (from about 800 boats in 1999 to about 540 boats in 2001);

• allocation of a maximum number of fishing nights to individual licensees;

• permanent closure to trawling of 32% of the fishery area;

• permanent closures to trawling of 50% of the GBRWHA;

• major annual seasonal closures to protect fishery viability;

• a complex array of closures to protect habitats and/or juvenile target species;

• rotational closures within scallop replenishment areas;

• seasonal area closures to protect sea turtles during their mating and nesting;

• mandatory use of bycatch reduction and turtle exclusion devices on all nets;

• installation of vessel monitoring system (VMS) technology on all vessels allowing automated monitoring of fishing vessel operations;

• introduction of bycatch and by-product recording in logbooks;

• possession limits on several by-product species;

• introduction of sustainability reference systems and review provisions for target species, bycatch and benthic communities; and

• provisions for licence suspension for Serious Fisheries Offences. Details of the Trawl Plan are summarised in Appendix 2. The Plan is available on line at: www.legislation.qld.gov.au/LEGISLTN/CURRENT/F/

Licensing Under the Trawl Plan a ‘T1’,‘T2’ or ‘M1’ licence is permitted to use otter trawl gear in the ECOTF. ‘T1’ licences allow the use of otter and beam trawl gear throughout the whole fishery area. ‘T2’ licences allow otter trawl gear to be used between the northern tip of Fraser Island and the Qld/NSW border. ‘M1’ licences allow otter trawling in the ‘T1’ fishing area and in Moreton Bay. Due to the small average size of the boats with ‘M1’ licenses, operators are effectively limited to Moreton Bay and surrounds.


Page 12

A freeze was placed on entry to the fishery in 1979. Since then there has been a substantial decrease in the number of licensed otter trawl operators. The number of licensed vessels decreased from 1,400 in 1980 (Hundloe 1985) to 870 in 1996 (Switala and Taylor-Moore 1999), and to 517 in 2002, with 485 both licensed and operationally capable of fishing in the GBR (Table 1). Table 1. Active licenses in the ECOTF as of the 18th October 2002

License Type

Methods and Area of Operation Number

T1 The whole ECOTF area 433 T2 NSW / QLD Concessional licenses (south of the GBRWHA) 32 M1 Otter trawling in Moreton Bay and ECOTF area. 52

Fishing Method Demersal otter trawling (Kailola et al. 1993) is used to harvest prawns, scallops, bugs and squid, and other by-product species in the ECOTF. Variations to the standard prawn trawl are allowed under the Trawl Plan. For instance, bigger / heavier gear is used for scallops to reduce shell cuts, and because the scallops are bigger than prawns. Cowhide slung beneath the cod-end of the net to minimise rubbing and snagging on the seabed is often used when trawling over rough ground. Triple and quad net arrangements (3 or 4 towed nets) (Figure 7) are frequently used in the fishery depending on the species/species group targeted, fishing conditions and length of the net allowed under the Trawl Plan. Headrope height varies according to target species, as does the detailed configuration of nets. Queensland east coast otter trawlers have traditionally used flat, rectangular ‘otter’ boards to spread their nets, but there is an increasing tendency to use more streamlined and smaller boards. While holders of ‘T1’ licences are also able to use beam trawl apparatus no licence holder has reported using beam trawl gear in the fishery.


Page 13

Figure 7. Quad gear, an example of a configuration used in the East Coast Otter Trawl Fishery. Illustration by J. McGilvray, Southern Fisheries Centre, DPI.


Page 14

Recreational Catch Most species taken in the ECOTF are not targeted by other commercial sectors or the recreational fishing sector. However, since 1997 when more comprehensive records for the recreational catch became available, each year on average 270 t, 430 t and 190 t of blue swimmer crabs (Portunus pelagicus) have been taken in trawl, commercial and recreational pot fisheries respectively (Williams 2002). Prawns are also taken by recreational fishers in small quantities eg 70 t in 1999 (Higgs 1999).

Indigenous Catch No data are currently available on indigenous harvesting of species taken in the ECOTF. However, it is generally accepted that with the exception of inshore prawn species (banana prawns and greasyback prawns), species caught in the ECOTF are rarely sought or taken by indigenous peoples.

Markets In 1998-99, the Gross Value of Production for prawn and scallop exports from the fishery was about A$200 million. Product is also supplied to local and interstate markets. Most of the ECOTF catch is made up of high value species commanding high prices in east Asian and European markets. Product is mainly processed locally, packed and frozen for export. There is also limited but growing interest in marketing live product for export e.g. bugs (Williams 2002).

The environment likely to be affected by the fishery The environment likely to be affected by the fishery is discussed in more detail in Appendix 3 and in the responses to Guidelines 2.1.1, 2.2.1, 2.3.1 and 2.3.2. The fishery lies off the entire Queensland east coast, in tidal waters bounded by 10.5ºS and 28.5ºS Latitude and east of 142.5ºE Longitude but excluding estuaries and tidal waters of Moreton Bay. More than 70% of the total area of the fishery is in the Great Barrier Reef World Heritage Area (QFS 2000). The Great Barrier Reef is the world’s most extensive coral reef system, covering about 350,000 km2 off the north and central Queensland coastline (Figure A 3.1). About 2,900 reefs lie within the GBR Region. They vary in area from less than 1 ha to more than 100 km2. There are about 300 coral cays and 600 continental islands, many with fringing reefs around their margins. The outer GBR is composed of a contiguous line of reefs near the edge of the continental shelf, varying in distance between 32 and 260 km from the coast. Trawling in the GBR region is predominantly over the softer sediments within the GBR lagoon lying between the Queensland coast and the western margin of the mid-shelf reef complex (GBRMPA 1998). Major commercial species, including tiger prawns, endeavour prawns and saucer scallops inhabit these waters, while habitats between the reefs and shoals are fished for red spot king prawns and coral prawns. There are also extensive deepwater trawling grounds outside the GBR. There are extensive intertidal, shallow sub-tidal and deep water (> 10m) seagrass habitats throughout much of the fishery area, including the far northern and central GBR and Hervey Bay/Great Sandy Straits regions. In the Great Barrier Reef region, there is seagrass in some estuaries, shallow coastal bays and inlets, on fringing and platform reefs and in inter-reef areas to depths greater than 60 m. Between Cape York and Hervey Bay there are about 5,000 km2 of seagrass (Lee Long and Coles 1997).


Page 15

There are approximately 267 km2 of seagrass in inshore and estuarine waters of southern Queensland (Hyland et al. 1987). Assessment of the Management Regime for the Queensland East Coast Otter Trawl Fishery against General Requirements of the EA Guidelines According to the ‘Guidelines for the Ecologically Sustainable Management of Fisheries’ the management regime should:

Take into account arrangements in other jurisdictions, and adhere to arrangements established under Australian Laws and International agreements Offshore Constitutional Agreement The issue of entry of Commonwealth-licensed vessels accessing the QECTF was addressed in the Offshore Constitutional Settlement (OCS) agreement of 1988 and was reviewed in 1995. The OCS agreement recognised the ceding of management responsibility in relation to trawl fisheries for fish and other aquatic biological resources in Commonwealth waters off the east Australian coastline to Queensland and New South Wales. Vessels near the border area and with proof of historical participation were granted access to both States in a Concessional Zone. The OCS agreement included the provision for rescinding the agreement by either party, with six months notice of intent. Such an action would mean that the State would only be responsible for State waters out to 3 nautical miles. Arrangements with New South Wales Fishers from NSW are allowed to fish in the Queensland ECOTF if they have a ‘T2’ (QLD/NSW Concessional) licence. This enables them to fish from the QLD - NSW border northward to the northern tip of Fraser Island. Joint formal stocks assessments of some species harvested in the ECOTF (eg eastern king prawns) have been undertaken (see response to Guideline 1.1.2). Liaison and information sharing between QFS and NSW Fisheries has taken place during the preparation of this ecological assessment. Great Barrier Reef Marine Park and World Heritage Area The Great Barrier Reef Marine Park was established in 1975 under the Commonwealth Great Barrier Reef Marine Park Act 1975 (GBRMP Act). Much of the ECOTF is in the Great Barrier Reef Marine Park (GBRMP) and comes under the jurisdiction of the Great Barrier Reef Marine Park Authority (GBRMPA). The GBRMPA has the statutory responsibility to manage the Marine Park with the goal of “providing protection, wise use, understanding and enjoyment” of the resources of the GBRMP Region in perpetuity. As a consequence, the GBRMPA is required to oversee the management of commercial and other fisheries (including trawl) in the Region. The Great Barrier Reef was inscribed on the World Heritage List in 1981. Under the Environment Protection and Biodiversity Conservation Act 1999, World Heritage Properties are considered to be of national significance. Under this Act certain actions that are likely to have a significant impact on a matter of national environmental significance are subject to a rigorous assessment and approval process. The GBRMPA is the lead agency for Great Barrier Reef World Heritage Area issues.


Page 16

The GBRMPA is currently developing a ‘Representative Areas Program’ (RAP) through which areas of high biodiversity can be identified and managed. It is proposed that areas accorded ‘Highly Protected Area’ (HPA) status will be permanently closed to all forms of fishing. The location of proposed HPA boundaries are not currently available, but will take into account spatial models of fishing effort from trawl fishing records, and least cost options to the trawl fishery. QFS views the GBRMPA’s HPAs as complimentary to their own declared closed areas and is involved in ongoing consultation with the GBRMPA regarding development of the new zoning scheme. The Environment Protection and Biodiversity Conservation Act 1999 This Act provides that certain actions that are likely to have a significant impact on a matter of national environmental significance are subject to a rigorous assessment and approval process. Matters of national significance identified in the Act as triggers for the Commonwealth assessment and approval regime are:

• World Heritage properties;

• Ramsar wetlands;

• listed threatened species and ecological communities;

• listed migratory species;

• Commonwealth marine areas;

• nuclear actions (including uranium mining).

• The EPBC Act also promotes conservation of biodiversity by providing protection of:

• listed species and communities in Commonwealth areas (listed threatened species and ecological communities, listed migratory species and listed marine species);

• cetaceans in Commonwealth waters and outside Australian waters;

• protected species of the Territories of Christmas Island, Cocos Islands and Coral Sea Islands;

• protected areas (World Heritage properties; Ramsar wetlands; Biosphere reserves; Commonwealth reserves and conservation zones); and

• wildlife species and wildlife products subject to international trade.

•

• Protection is provided for by:

• the identification of key threatening processes;

• the protection of critical habitat;

• the preparation of recovery plans, threat abatement plans, wildlife conservation plans, bioregional plans, and conservation agreements;

• the issuing of conservation orders;

• the regulation of exports and imports of live animals and plants, wildlife specimens and products made or derived from wildlife.


Page 17

Of relevance to the ECOTF are The Great Barrier Reef World Heritage Area (see above), listed threatened species and ecological communities, listed marine species and listed migratory species. Listed species and communities are discussed in the responses to Guidelines 2.2.1 to 2.2.6. Under the EPBC Act a fishery needs to demonstrate that it is ecologically sustainable. This document is the QFS response to that requirement. Convention for the Protection of the World Natural and Cultural Heritage 1972 Australia is signatory to the Convention for the Protection of the World Natural and Cultural Heritage 1972. The most significant feature of the Convention is to link together in a single document the concepts of nature conservation and the preservation of cultural sites. By signing the Convention, each country pledges to conserve not only the World Heritage sites in its territory, but also to protect its national heritage.

Be Documented, Publicly Available and Transparent The East Coast Otter Trawl Fishery is managed under the Fisheries Act 1994 and the Fisheries (East Coast Trawl) Management Plan 1999 (the Trawl Plan) which is subordinate legislation to the Fisheries Act. The most recent version of the Trawl Plan and its Amendments are available at: www.legislation.qld.gov.au/LEGISLTN/CURRENT/F/ The Fisheries Act 1994 is also available at the above internet site. Statewide summaries on the status of Queensland’s major trawl fishery resources have been released publicly in ‘Fisheries Resource Condition and Trend Reports’. These reports contain interpreted catch rate trends for the nine major trawled species/species groups derived from CFISH catch and effort data. Declining catch rates are highlighted and assessments made about potential sustainability problems. Fishery resource status reports, annual catch statistics, licensing information and updates on fishery and habitat management changes are available on the DPI Fishweb site located at: www.dpi.qld.gov.au/fishweb/ Catch and fishing effort information for trawl and other fishery resources are presented in printable map form available from the Coastal Habitat Resource Information System (CHRIS) web site located at: www.dpi.qld.gov.au/chris/.

Be Developed Through a Consultative Process Providing Opportunity to all Interested and Affected Parties, Including the General Public The Trawl Plan was developed following extensive consultation with interested and affected parties including the general public.


Page 18

In 1996, following extensive discussions at Trawl Management Advisory Committee (Trawl MAC) meetings, including presentations by industry representatives, a Discussion Paper was prepared by Trawl MAC.3

3 Trawl MAC includes commercial, recreational and indigenous fisher representatives, scientists and representatives of conservation agencies and non-government organisations. The Discussion Paper incorporated an extensive public consultation process through a series of port meetings and the opportunity for interested parties to forward submissions. This formed the basis for the development of the Proposed Management Arrangements paper. Public comment was sought on the proposals in the Proposed Management Arrangements paper, and following an analysis of responses and further refinement of arrangements, a Draft Management Plan for the Queensland East Coast Trawl Fishery was released for public comment in June 1999. There were 252 written responses to the draft Plan by the final expiry date of 21 July 1999. In addition, a series of public port meetings were held along the coast. Copies of submissions and other responses were made available to Trawl MAC members. Further details of this process are presented in Appendix 2. The Trawl Plan is subject to regular review. Fishing industry groups, all levels of government, interest groups (including conservation groups and Aboriginal and Torres Strait Islanders) and members of the public are invited to comment on reviews of the Trawl Plan and submissions taken into account in any changes to the Plan.

Ensure that a Range of Expertise and Community Interests are Involved in Individual Fishery Management Committees and During the Stock Assessment Process Since 1995, a Trawl MAC has provided advice to the fishery management agency on development of a Management Plan and other matters for strategic management of the QECTF. Trawl MAC includes members with expertise in commercial and recreational fishing, processing/marketing, conservation, enforcement, scientific and GBRWHA management and is led by an independent Chair. Specialist scientific and technical advice is provided to fishery management through a number of sub-committees. External scientific input to management decisions is provided through the Scientific Advisory Group (SAG), Technical Working Group (TWG) and Scallop Working Group (SWG) who advise Trawl MAC. Assessments of the fishery have benefited from a range of externally recognised scientific expertise with scientists not only from DPI but also CSIRO and James Cook University (see Dichmont et al. 1999).

Be Strategic, Containing Objectives and Performance Criteria by Which the Effectiveness of the Management Arrangements are Measured The Queensland Government is committed to managing fisheries resources according to the principles of Ecologically Sustainable Development. The Queensland Fisheries Act 1994 is the legislation by which this may be achieved. Objectives of the Act are to:

• ensure fisheries resources are used in an ecologically sustainable way;


Page 19

• achieve the optimum community, economic and other benefits obtainable from fisheries resources; and to

• ensure that access to fisheries resources is fair. These objectives have been built upon further to achieve ecological sustainability through the Trawl Plan, primarily through reducing effort and bycatch, monitoring of catch, bycatch and by-product, fisheries independent monitoring of stocks and regular reviews of management arrangements. The effectiveness of the management arrangements are measured through review events under the Trawl Plan. Some reviews including those for permitted fish species, fishing effort, steaming days and a general review of the Plan have been undertaken already or will be in the future as described by the Plan. An adequate formal public consultation process is a requirement for each of these reviews under the Plan. Other reviews in the Plan are set against performance criteria. Where specific performance criteria are not met within a stated timeframe, a review event may be triggered under the Plan. Major performance criteria include:

• reduction of catch levels of non-target species (including by-product species) in the fishery by 40% before 1st January 2005;

• reduction of the impacts on benthos by 25% before 1 January 2005;

• CPUE for a principal fish is not to fall below 70% of the average CPUE during specified months in the period 1988 to 1997 (currently under review); and

• specific targets for effort reduction [eg. reduction of effort units by 13% or more in the first effort year (2001)].

Further details are contained in Guidelines 1.1.6, 2.1.6. Review events are listed in Appendix 4.

Be Capable of Controlling the Level of Harvest in the Fishery Using Input and/or Output Controls The Fisheries Act and Trawl Plan provide the legislative platform to control the level of harvest within this fishery. This is primarily achieved through a combination of input control measures including fishing effort capping and reduction; boat replacement and effort unit trading and licence surrender/transfer provisions; spatial and temporal trawl area closures; gear restrictions and engine power restrictions. There are also output controls including size, gender and quantity restrictions for some species. These management arrangements are discussed in more detail in Appendix 2 and in the response to Guideline 1.1.7.


Page 20

Contain the Means of Enforcing Critical Aspects of the Management Arrangements The DPI Queensland Boating and Fisheries Patrol (QB&FP) is responsible for ensuring compliance with fishery legislation in the ECOTF. Officers stationed between the NSW border and Thursday Island are involved in enforcement of the provisions of the Trawl Plan. NSW Fisheries officers assist with enforcement duties in the southern border area. All compliance operations are coordinated through Regional Operations Managers based in Townsville and Brisbane. Shore-based officers conduct compliance inspections with trawl fishers at wharves and unloading facilities. Unattended product is inspected during transport to and from wholesale or retail outlets, live holding facilities and processing plants. Shore-based product inspections are supported by inspections at-sea of catching apparatus, bycatch reduction/exclusion devices installation and use. Long-range patrol vessels based in Cairns, Gladstone and Brisbane undertake surveillance of fishing activities in offshore areas, while areas closer inshore are managed by medium size craft stationed at District Offices between Port Douglas and the Gold Coast. Field inspections include the monitoring of logbooks, licences, possession limits on permitted species regulated by number (blue swimmer crabs and pipefish), size (e.g. saucer scallops blue swimmer crabs and bugs), volume (e.g. cuttlefish and octopus), and gender (e.g. female red spot crabs, ovigerous bugs and barking crayfish). Other inspections include compliance in accordance with the Trawl Plan for fishing gear, turtle and bycatch reduction/turtle excluder devices, area of operation and daily reporting data accuracy of Vessel Monitoring System (VMS) equipment. Compliance Levels Compliance levels in the fishery are generally high due to VMS tracking and high levels of enforcement activity during fishing periods. Offences reported include fishing in closed waters and infringements related to unlawful fishing aboard vessels targeting prawns or scallops (eg non-use of BRDs or TEDs on trawl gear and VMS incursions) (Table 2). Table 2. Compliance in the fishery in 2001.

Number of Convictions Type of Offence Serious Fisheries1

Offences Other Offences Total

Closed Waters Offence 23 16 39 VMS Incursion 5 2 7 TEDs/BRDs 0 5 5 Regulated Fish Offence 1 6 7 Total 29 29 58 Note – This data should be treated as indicative only. The job of protecting fisheries resources has been made easier through the provision of the 24-hour toll-free FISHWATCH HOTLINE (1800 017 116). Suspected illegal fishing activity can be reported directly to the QB&FP from anywhere in the State at no cost to the person reporting the activity.


Page 21

Serious Fisheries Offences4 S. 235 of the Trawl Plan lists a range of serious fisheries offences. These include:

• fishing in closed waters under the Trawl Plan and the Great Barrier Reef Marine Park Act 1975;

• failure to comply with VMS provisions under the Trawl Plan;

• possessing regulated fish specified under the Trawl Plan. 4 Serious Fisheries Offences include offences such as contravening closed waters, possessing regulated fish, contravening the Marine Parks Act 1982, obstructing inspectors etc (see S. 235 of the Plan). If convicted of a serious fisheries offence, the boat operator and in some instances the boat licence holder, may be required to show cause why their licences should not be suspended. The Trawl Plan lists the length of suspension that should apply in the case of a person being convicted for one, two, three or four separate serious fisheries offences. Emergency Fisheries Declarations Under s.46 of the Fisheries Act 1994, the QFS may make an Emergency Fisheries Declaration effecting an emergency closed season, closed waters declaration or regulated fish declaration. Such a declaration may be made only if the QFS is satisfied that urgent action is needed to meet a significant threat to fisheries resources or a fish habitat or another emergency. The QFS must publish the declaration but is not required to enter into consultation about the declaration. The declaration expires within 2 months of its gazettal unless earlier repealed. Where the declaration is inconsistent with a Regulation or Management Plan unless earlier repealed, the declaration expires 21 days after gazettal.

Provide for the Periodic Review of the Performance of the Fishery Management Arrangements and the Management Strategies, Objectives and Criteria Management arrangements and strategies in the Trawl Plan are frequently reviewed by QFS through the Trawl MAC and through subcommittees of the MAC. Statewide summaries of annual statistics of Queensland’s major trawl fishery resources are released publicly as fishery status reports [eg. Queensland’s fisheries resources: Current condition and recent trends 1988–2000 (Williams 2002)], published on the web at: www.dpi.qld.gov.au/fishweb/. Several reviews are required under the Trawl Plan to ensure that management arrangements are achieving desirable sustainability outcomes. S. 227 of the Trawl Plan sets out the requirement for a ‘Fishing effort review’ to decide whether fishing effort in the fishery is ecologically sustainable. The review must be completed before 2004 and if the level of effort in the fishery is not ecologically sustainable, the Plan must be amended before 2006 to further reduce fishing effort. S. 229 of the Trawl Plan sets out the requirement for a ‘General review’ of the entire Plan to be started between November 2004 and November 2006. The purpose of the


Page 22

general review is to decide whether the provisions of the Plan remain appropriate from an ecologically sustainable viewpoint. Schedule 2 of the Trawl Plan a variety of review events are listed relating to management objectives and criteria (Appendix 4). The consultation mechanism for a review is set out in s.230 of the Trawl Plan. In triggering a review event, the QFS would obtain expert advice regarding the particular stock. This may involve outsourcing to other agencies. These experts would review all relevant data regarding the stock in order to understand why the review event had been triggered, and recommend appropriate management responses. Further details regarding Review Events are contained in the response to Guideline 1.1.6. A full listing of review events under the Trawl Plan is contained in Appendix 4.

Be Capable of Assessing, Monitoring and Avoiding, Remedying or Mitigating any Adverse Impacts on the Wider Marine Ecosystem in which the Target Species Lives and the Fishery Operates A performance target of the Trawl Plan linked to a review event if not achieved, is to reduce catch levels of non-target species (including by-product species) in the fishery by 40% before 1st January 2005. Based on the work of Stobutski et al. (1999), the universal adoption of BRDs coupled with expanded area closures implemented in the fishery in 1999, may meet this target in the banana prawn sector, while additional measures may be required in other sectors. In addition to the mandatory use of BRDs, the Trawl Plan also provides for the implementation of effort reduction in the fishery and further restrictions to fishing gear. While these are relatively recent measures contributing to the reduction of fishing pressure on non-target species, there have also been significant increases in waters permanently closed and closed seasonally to trawling throughout the history of managing the fishery. For example permanent inshore and seasonal offshore trawl closures were in place in northern Great Barrier Reef waters to protect benthic habitats and young prawns well before the Trawl Plan commenced in 1999 (Anon. 1996). Under the Plan, there are now additional permanent closures and major seasonal closures in central and southern Great Barrier Reef waters. Further significant permanent closures to trawling (highly protected areas) are expected within the medium-term arising from the revised zoning of the GBRMP currently under way through the Representative Areas Program. At the completion of the re-zoning process , a network of significant representative areas of the marine ecosystem in the GBRMP will be highly protected with minimal impacts from fishing. QB&FP surveillance (including VMS) is considered effective in determining the rate of compliance with those fisheries regulations enacted to enhance the sustainability of bycatch species (e. g. observance of closed areas, use of BRDs, etc.) (Appendix 2). Further details are provided in response to Guidelines 2.1.1 to 2.3.5.


Page 23

Comply with Relevant Threat Abatement Plans, Recovery Plans, the National Policy on Fisheries Bycatch, and Bycatch Action strategies Developed Under that Policy Threat Abatement Plans Threat abatement plans are used to direct management, research and other actions required to reduce the impact of key threatening processes on threatened species and communities listed in the EPBC Act 1999. There are no threat abatement plans implemented in the ECOTF area. Recovery Plans There are recovery plans for some threatened ecological communities and species listed in the EPBC Act 1999. These plans set out research and management actions required to stop the decline and support the recovery of listed species and communities. There are two recovery plans that relate to the ECOTF. First is the draft Recovery Plan for Marine Turtles in Australia prepared by Environment Australia. Prescribed actions under the Recovery Plan (ie. compulsory use of TEDs, additional closed areas, and ongoing monitoring against targets for reduced incidence of turtle capture and mortality) have been implemented under the Trawl Plan. Second, the National Plan of Action - Sharks is currently being prepared by Agriculture, Fisheries and Forestry – Australia (AFFA). Once endorsed, the State and Territory fishery agencies including QFS will have responsibilities for implementing the actions agreed under the Action Plan. Actions include assessment of the impact of bycatch reduction measures in reducing/unintentionally increasing shark mortality. The Commonwealth Policy on Fisheries Bycatch The Trawl Plan’s objective to reduce catch levels of non-target species conforms to a number of the Guiding Principles of the National Policy on Fisheries Bycatch (AFFA 1999). These issues are discussed in the response to Guidelines 2.1.1 to 2.3.5. The Guiding Principles of this policy are that decisions and actions to address bycatch will:

• foster stewardship of Australia’s marine resources to maintain and improve the quality, diversity and availability of fisheries resources, and the integrity of the marine ecosystems into the future;

• promote co-operative and transparent approaches, involving all stakeholders, to ensure effective stewardship of our marine resources;

• manage marine resources so that short term considerations are consistent with long-term goals and apply the precautionary principle in the management of fisheries resources;

• recognise the unique biological, ecological, economic and social nature of individual fisheries by developing bycatch-action plans to address bycatch issues;

• encourage co-operation in the development of complementary arrangements between relevant authorities to ensure that, where stocks overlap or are split between jurisdictions or are migratory, effective management strategies are


Page 24

applied across jurisdictions. These include State and territory agencies, other fisheries management agencies, and international bodies;

• provide robust and practical biological reference points relating to bycatch, where possible, to make decisions on bycatch management. Develop biological reference points in consultation with stakeholders, recognising that in many cases there are limitations to the costs of determining these reference points. Where the use of biological reference points is not feasible, the precautionary principle will be used as a basis for decision making.

Assessment of the Management Regime against Principle 1 Principle 1: A fishery must be conducted in a manner that does not lead to over-fishing, or for those stocks that are over-fished, the fishery must be


Page 25

conducted such that there is a high degree of probability the stock(s) will recover. Objective 1. The fishery shall be conducted at catch levels that maintain ecologically viable stock levels at an agreed point or range, with acceptable levels of probability. Management of Target (Principal) Species

Information Requirements 1.1.1 There is a reliable information collection system in place appropriate to the scale of the fishery. The level of data collection should be based upon an appropriate mix of fishery independent and dependent research and monitoring. Fishery Information Collection Systems QFS has developed and maintains a range of data collection systems for providing up-to-date information on fish stocks, fish species taken and the level and distribution of fishing effort and fish catches. This information is used by managers to make decisions about maintaining sustainable harvests of principal species and ensuring provisions of the Trawl Plan are met. It is also used by researchers in making scientific assessments about the status of these species and bycatch (including by-product species permitted under the Plan) and by analysts monitoring and interpreting spatial and temporal changes and trends in fishing activity and catch levels. Data collection systems in use include:

Fishery Dependent Fishery Independent

• CFISH Fisher Logbook Program

• Vessel Monitoring System

• RFISH Recreational Fishing Surveys and Fishing Diaries

• Long Term Monitoring Program

• Historic and ongoing research project databases

Commercial Fisheries Logbook Program (CFISH) A comprehensive compulsory daily logbook program for Qld’s commercial fisheries was introduced in 1988. Prior to this, catch and effort data from specific elements of the fishery were collected as part of short to medium term research projects. The Commercial Fisheries Information System (CFISH) database was established in 1992 to manage the large flow of data from fishers and provide access to fishery dependent data for fisheries research and management. CFISH is part of the larger QFS-managed, fisheries information system (QFISH) that also includes data from recreational fishing surveys, fisher diaries and angling club records. QFISH was modelled on the Australian Fishing Zone Information System (AFZIS) (Anon. 1994). Quarterly compliance runs on the CFISH database allow checks to be made on lodgment of logbook returns by fishers. In 2000, a major assessment of data entered on the system was validated against archived logbook returns from fishers. Generally, consistency between records was found to be high, in the order of 90% (L. Williams, pers. comm.). Correction of inconsistencies in the data, allowed QFS fishery managers


Page 26

to confidently calculate a cap for fishing effort, set a precise target for effort reduction in the fishery and allocate fishing nights to individual fishers based on historical levels of effort. Improving the accuracy of the information held on the CFISH system is an ongoing exercise in quality control. Amendments to the database have recently included resolving records with operations showing incorrect spatial information and correcting species code errors. Work is well progressed on development of the expanded trawl (OT08) logbook (successor to the current OT07 log book). Introduction of the OT08 logbook is planned for 2003. The new logbook will reflect changes necessary to provide data for the assessment of reported catches of byproduct species against catch limits as set out in the Regulatory Impact Statement (QFS 2001) and Draft Trawl Amendment Management Plan 2001 (see Response to Guideline 1.1.8 for details) and will improve monitoring of bycatch species as recommended under the National Policy on Fisheries Bycatch (AFFA 1999). Use of the OT07 logbook has already considerably improved data available on bycatch (protected species and by-product) and fishing activities at a finer spatial scale (6 nm grids) than was previously the case (Appendix 5). Catch and effort data series by 30’ x 30’ grid are available from 1988 onwards for major species / species groups taken in the fishery (i.e. tiger, endeavour, king, banana and bay prawns, scallops, bugs, squid and crabs). Since July 2000, 6’ x 6’ grid data is available for these species and for byproduct and some protected species. An Electronic Catch and Effort Reporting System (ECERS) has been trialed voluntarily in the fishery since February 2001. ECERS was developed to provide an alternative to the traditional commercial fisheries logbooks and enhance electronic communications at sea by providing a simple and cost effective mechanism that enables QFS to receive:

• logbook returns;

• non-fishing notification;

• steaming notification (moving a boat without fishing);

• day start notification (midday to midday or midnight to midnight);

• maintenance notification; and

• manual position reports. ECERS has potential as a management tool allowing real-time monitoring of catch and effort data recorded by the vessel. Currently only paper logbook returns are compulsory under a fishing licence. Trawl operators will be notified when catch and effort reporting using ECERS as an alternative to paper logs can commence. While commercial trawl logbook catch data are currently unvalidated, QFS is investigating further actions required to assess the feasibility of additional fishery dependent data collection systems for the fishery including on-board observer and buyer’s return programs.


Page 27

Vessel Monitoring System It is essential to monitor the position of boats at all times to determine their location in relation to closed areas and whether they are actively fishing or not fishing but moving between areas. The Vessel Monitoring System (VMS), coordinated by Queensland Fisheries Service, is a major tool for an effective monitoring and compliance program for the fishery. This system provides a significant deterrent to illegal fishing. Under the Trawl Plan, trawl operators are required to install a Vessel Monitoring System on their boats. The VMS currently receives at least one position every hour from each vessel. In certain areas positions are received more frequently, particularly when a vessel is close to closures such as the scallop replenishment zones. Positions received are analysed and stored by the main VMS computer in Brisbane. Boat positions and any alerts are forwarded to the regional Boating Patrol offices all along the coast. Should VMS units malfunction the Plan includes a system of compulsory manual reporting. Since the beginning of 2001, the position data received by the VMS has been used also as part of the Effort Monitoring System (EMS) to monitor the use of trawl fishing effort quota. Recreational Fisheries Information System (RFISH) Regular surveys on the extent and harvest of recreational fishing are undertaken. In 1996 and 1998 a broad based telephone survey was conducted, and a fisher diary program was run throughout 1997 and 1999. These surveys have provided data held in the Recreational Fisheries Information System (RFISH) database that forms part of QFISH (see above). Estimates of total harvest of major species on a regional basis from these surveys are available and reported (e.g. Higgs 2001). Fisheries Long Term Monitoring Program (LTMP) Fishery-dependent data, while inexpensive, comprehensive and readily available, have long been recognised as having intrinsic problems when used as measure of stock abundance. In 1999 QFS initiated a state wide, fishery independent, Long Term Monitoring Program in response to the needs for collection of long term trend data for the stock assessment of target trawl species. The species that are assessed were selected through a series of Resource Priority Workshops in 1998. At these workshops the need for long-term fishery independent assessment was determined on the basis of the:

• potential risk of over fishing of a species;

• size and significance of the fishery;

• adequacy of existing data sets;

• ability to collect suitable monitoring data and the

• existence of suitable indicators. Species in the ECOTF that are assessed in this program include tiger prawns in north Queensland and scallops, bugs, blue swimmer crabs and pipefish in southern Queensland. Priority trawl species not included in the LTMP, most notably the eastern


Page 28

king prawn, have recently been studied to develop suitable indicators for long-term monitoring of recruitment levels (Courtney et al. 2002). Various sampling methods are used in different components of the long term monitoring program. Fishery independent techniques are preferred. Where they are not feasible combinations of fishery dependent and fishery independent techniques are used. Program data is collated in a central database maintained within the QFS Assessment and Monitoring Unit in Brisbane. Tiger Prawns Two species of tiger prawns (Penaeus esculentus and P. semisulcatus) are part of a suite of penaeid prawn species taken in the ECOTF. There are major tiger prawning grounds off the far north Qld coast, extending into Torres Strait and also appreciable fisheries south to Mackay. In January 1998, at a Monitoring Workshop, the development of a fishery independent estimator of tiger prawn stock biomass was identified as a priority. This estimator was needed because changes in catch rate estimated from commercial harvest data may be masked by “effort creep”, the aggregating nature of both fishing activity and the species, and because tiger prawns have suffered from recruitment overfishing in other Australian fisheries. Annual fishery independent assessments are undertaken of tiger prawn stocks as part of the Long Term Monitoring Program. The surveys coincidentally monitor endeavour and red spot king prawns. The objectives of the tiger prawn component of the long term monitoring program are to:

• implement a long term, fishery independent, sampling procedure that can be used as a robust method of monitoring recruitment levels in the tiger prawn fisheries along the northern Queensland east coast and in Torres Strait;

• obtain fishery independent indices of recruitment which can be used to generate a long-term data series; and to

• incorporate the recruitment indices in research into stock-recruitment relationships, a stock sustainability index and into an assessment of the risk of recruitment overfishing for each species (tiger, red spot king and endeavour prawns).

The sampling procedure for fishery independent assessment of tiger prawn stocks was developed in FRDC project 97/146. Key inshore sampling sites were identified in this project on the basis of earlier research studies near the Turtle Group Islands, in Princess Charlotte Bay, Shelburne Bay and in Torres Strait. New sites were also established on sections of the coast which had not been regularly sampled before. Tiger, endeavour and king prawn pre-recruit levels are surveyed in these areas on the dark of the moon in February of each year. A total of 76 sites spread between Cape


Page 29

Flattery and PNG waters in Torres Strait are sampled during a 14 day charter as close as possible to the start of the fishing season on 1 March each year (Figure 4A). In April 2002 surveys were extended to include more southerly sites between Cape Tribulation and Halifax Bay (Figure 4B).

#S#S#S

#S#S#S#S

# S # S # S # S # S # S # S # S # S # S

# S # S # S # S # S # S # S

# S # S # S # S # S

# S # S # S # S # S # S # S # S # S # S # S # S # S # S # S

#S#S

#S#S#S #S#S

#S#S#S

# S # S # S # S # S # S # S # S # S # S # S # S #S#S

#S# S # S # S

# S # S # S # S

P r i n c e s s C h a r l o t t e B a y Cape Flattery

C ape S i d m o u t h

C a pe D i r e c t i o n C a p e Weym o u t h

T e m p l e Bay

C a p e G r envil l e S h e l b u r n e Bay

C a i r n c r o s s I s l e t sC a p e Y o r k

T o r r e s S t r a i t

# S S ample sites

0 4 0 8 0 120 1 6 0 K i l o m e t e r s

N

W

S

A Northern sites: Cape York to Cape Flattery

B Southern sites: Cape Tribulation to Halifax Bay

Figure 8. Location of sample sites for the LTMP tiger prawn pre-recruit survey. An unpublished report to FRDC on the analysis and modelling of data from 1998 to 2001 has been completed (Turnbull and Gribble 2002). Preliminary results show differences in recruitment levels were reflected in commercial catch levels. Further it is estimated that the Maximum Sustainable Yield for the Northern Region (Cape Tribulation to Cape York) is 1,598 tonnes and the average catch for those years was 1,167 tonnes. The most recent assessments of the northern tiger and endeavour prawns stocks indicate that both stocks are fully exploited. The LTMP data will build on this data on an annual basis. Eastern King Prawn The objective of fishery independent monitoring for eastern king prawns was to determine patterns in large-scale spatial variation in recruitment and provide a means for stock assessment for this species. Research into recruitment indices for this stock has been undertaken in FRDC-funded research Project No. 1997/145. This fishery was initially excluded from the LTMP pending the results of this project. This project has recently been completed with the objective of providing a suitable sampling design for long-term monitoring of this species (Courtney et al., 2002). However, preliminary results indicate that with current monitoring methods it may still be possible to miss detection of a 50% decline in the


Page 30

recruit catch rates even when sampling a high number (200+) of transects (Courtney et al. 2002). The feasibility of monitoring this species to aid decision-making in management of the fishery needs further consideration. Scallops Fisheries independent long term monitoring is also undertaken of saucer scallops. The objectives are: • Quantification of the effect of TED & BRD inclusion on the standardised catch rates of target and permitted species. • Estimation of scallop population abundance within the C-Fish grid T30 and the three management preservation zones. • Estimation of population of blue swimmer crabs and Moreton bay bugs within the C-Fish grid T30 and the three management preservation zones. • Evaluation of the effectiveness of the rotational closure strategy for the maintenance of: • Population size structure • Population abundance, abundance of mature scallop • A mechanism for stabilising recruitment both within and outside of the preservation areas. Population and recruitment trends are measured annually using a stratified random trawl survey. The survey covers the main scallop grounds between 22030’S and 250S, from about 3 nm offshore to the shelf break, but excluding the GBRMP Zone B area around the Capricorn – Bunkers (Figure 5). There are 12 strata, based upon the CFISH 30’ by 30’ grids, and the existing scallop preservation areas. Should management change the preservation areas, strata positions and weightings given to strata can be altered to reflect these changes. Following each survey and prior to the opening of the seasonal southern trawl closure, catch rates, population size structure, legal and sub-legal densities and predicted commercial catch rates and total catch information are generated and fed back to the industry. In addition, survey information has been used to assess the effectiveness and potential yields of the spatial closures. These spatial closures have subsequently been changed to a rotational management strategy, allowing scallops one year and older within these areas to be periodically fished while having minimal effect on the spawning capacity of scallops in these areas. Survey data will give a long term recruitment index across the entire fishing grounds and a detailed picture of scallop abundance in the scallop replenishment areas. The data may, in time, be used to optimise yield and minimise fishing costs. Blue Swimmer Crabs, Moreton Bay Bugs Relative abundance, size composition and sex ratios of blue swimmer crabs and Moreton Bay bugs (Thenus orientalis and T. indicus) are recorded during the annual scallop recruitment survey. The survey covers some of the State's most productive grounds for these species (Figure 4) and will generate recruitment and abundance indices over time. The annual surveys have also been used to determine the best way to monitor blue swimmer crab stocks. Using power analysis it has been possible to detect changes in levels of relative crab abundance of between 5% and 30% based upon the crab catch data from the survey with some limitations. It is recommended that


Page 31

a mixture of fishery independent and fishery dependent methods be used for long-term monitoring blue swimmer crab stocks (Sumpton et al. 2002).

Figure 9. Scallop long term monitoring survey sites


Page 32

Pipefish (Solegnathus hardwickii) Pipefish catch and catch rates are measured during the scallop survey. Total syngnathid catches in these surveys are small. However, there is a further need to independently validate syngnathid bycatch data from the ECOTF logbook program. Under the conditions of an approved wildlife trade operation for syngnathids authorised by Environment Australia in mid-2002, it is a requirement that a pilot observer program for syngnathids be commenced in the fishery by May 2004 (see response to Guideline 2.2.1). Future Development of the Monitoring Program Priority actions that reflect the needs of management for stock status information include:

• the assessment of the saucer scallop dataset, identifying parameters describing significant variation in the catch rate and size structure;

• the redesign of the saucer scallop survey around these parameters;

• the introduction of fishery independent trawl surveys for the estimation of eastern king prawn recruitment.


Page 33

Assessments 1.1.2 There is a robust assessment of the dynamics and status of principal species in the fishery and periodic review of the process and the data collected. Assessment should include a process to identify any reduction in biological diversity and /or reproductive capacity. Review should take place at regular intervals but at least every three years. Statewide Condition and Trend Reporting Statewide summaries on the status of Queensland’s major trawl fishery resources are released publicly in ‘Fisheries Resource Condition and Trend Reports’ (e.g. Williams 2002). These reports contain interpreted catch rate trends for the nine major trawled species/species groups derived from CFISH catch and effort data. Changing catch rates, both regionally and Statewide are highlighted and assessments about potential sustainability problems reported to fishery managers and the public. Stock Status and Dynamics Assessment of the short-lived species that form the bulk of the ECOTF production can be undertaken using a range of techniques of varying sophistication and intent. Basic assessment — review of catch rate and effort data from fisher logbooks — is undertaken routinely (e.g. Williams 2002). More detailed stock assessments have been undertaken for several target species including tiger and endeavour prawns (Watson et al. 1996; Turnbull and Gribble 2002) in the northern GBR, and saucer scallops in the southern GBR and eastern king prawns in southern Queensland (Dichmont et al. 1999). Stock assessments currently being undertaken, in addition to interpreted catch rate trends are listed in Table 3. Table 3. Stock assessments currently being undertaken5.

Fishery Assessment Type Status

Bugs Yield-per-Recruit model

completed internal report being peer reviewed

Eastern king prawns

Age structured model completed report to FRDC due January 2003

Scallops Age structured model completed report to FRDC due January 2003

North Qld tiger prawns and endeavour prawns

Surplus production model completed internal report being peer reviewed

Blue swimmer crabs Biomass model completed report to FRDC

5 QFS in consultation with scientists in DPI’s Agency for Food and Fibre Sciences is developing a routine stock assessment program for the ECOTF to make use of both logbook catch and effort data together with fishery independent data.


Page 34

Tiger Prawns Assessments of the dynamics and status of tiger prawn stocks is based on the review of catch and effort data and stock assessments using surplus production models. The basic review of catch and effort data indicates that from 1988 to 2000 there were no consistent trends in the catch, however annual variability was high, particularly in the last 5 years. The mean annual daily harvest per boat has also remained relatively stable with no obvious long-term decline. The relatively recent adoption of advanced navigation aids, such as GPS and differential GPS, may have increased fishing efficiency. Increasing effective effort may be resulting in decreases in CPUE (Williams 2002). Yearly catch rate data for tiger prawns in the northern part of the fishery (Cape York to Cape Tribulation, 16°S) have been fitted to a Schaefer non-equilibrium surplus production model, with effort creep scenarios factored into the model. This model indicated that although the stock is fully exploited, catch rates (and stocks) have not declined over the last ten years. A number of caveats need to be applied to this assessment however: the data time-series is relatively short and does not contain the developmental stage of the fishery; the logbook categories used are suites of species and consequently may mask stock changes in individual species; and these prawns aggregate, which may make CPUE a poor indicator of underlying abundance (Turnbull & Gribble 2002). Recruitment patterns for the brown tiger prawn (Penaeus esculentus) in north-eastern Australia have also been investigated through population modelling. This study concluded that when identification of older recruits is important in modelling, for example in modelling management closures for fisheries, length-based cohort methods were recommended. In the absence of methods to age prawns it is important to attempt a range of methods to establish recruitment patterns so that dangerous assumptions are avoided (Watson et al. 1996). Further it was established that the same species in two different locations have different recruitment patterns. In addition, annual fishery independent assessments are undertaken of tiger prawn stocks as part of the Long Term Monitoring Program. The surveys coincidentally monitor endeavour and king prawns in north Queensland. Eastern King Prawns On the Queensland coast eastern king prawn (Penaeus plebejus) are predominantly harvested south of 22°S and outside of the Great Barrier Reef lagoon. Total Queensland harvest of eastern king prawns, excluding Moreton Bay, increased from 1988 to 1998 then decreased to 2000. Over the same period the number of boats in the fishery has decreased, while the number of days fished per boat per year has slightly increased. The mean daily harvest has remained relatively stable with a slight upward trend (Williams 2002). Assessment of fishery-independent survey data collected in 1971-73 and 1989-90 indicates there has been some decline in the recruitment of juvenile prawns to the ocean fishery, with a significant decrease in juvenile king prawn numbers on inshore nursery grounds (Williams 2002).


Page 35

Growth, mortality, migration and movement of eastern king prawns have been relatively well studied in NSW and Queensland and are comparatively well understood. Fecundity, spawning and other aspects of biology of these prawns have also been studied. Research data from NSW has been effectively used to compare trends in prawn recruitment abundance to the fishery in both States and overall. In 1998, in a stock assessment workshop, a series of analyses were undertaken on eastern king prawns and summarised in Dichmont et al. (1999). These included:

• characterisation of seasonal and long-term catch rates in both NSW and Queensland. There were clear peaks in catch rates in November, December and January which were consistent with the expected periods of recruitment. There were also repeated, clear peaks in June and July, that were unexplained. This mid year peak is being investigated further in a FRDC project (97/145);

• investigation of the distribution of effort, and how the spatial distribution of effort has changed over time. There is a clear reversal of seasonal catch levels between offshore spawning areas and both shallow recruitment areas and intermediate areas. This pattern reflects the offshore migration of small prawns as they grow;

• an assessment of the species vulnerability to recruitment or growth over-fishing;

• establishment of a yearly recruitment index through simulation models. Both the worst and best case scenarios for the recruitment index demonstrated a decline in recruitment over time;

• investigation of commercial catches during the main spawning period. Based on per-recruit analysis it was determined that possible spawning closures to avoid over-fishing should be in the region offshore of Moreton Island in depths greater than 85 m during the months of June and July.

Recruitment indices for this stock are being attempted in the DPI-FRDC Project No. 1997/145. Preliminary results indicate that it may not be possible to detect even relatively high levels of change (eg. 50%) in recruit catch rates with high sampling intensity using the method proposed (Courtney et al. 2002). Saucer Scallops Harvest and harvest rates have been stable since 1997 for this species. Saucer scallop harvest has varied between 600 t and 2200 t from 1988 to 2000. Mean harvest is approximately 1100 t. Assessments conducted for scallops, above and beyond the annual review of catch rate and spatial distribution of effort trends, include:

• an assessment of yield optimisation (size limits, time and capture) (Dredge 1985, Dredge 1994);

• an initial and unpublished investigation of a biomass dynamic model which relates annual catch and effort to estimate optimum effort levels, sustainable yield and potential biomass levels (M. Dredge, unpublished);

• a series of analyses and assessments on saucer scallop resources (Dichmont et al. 1999) undertook including:


Page 36

• evaluation of a rotational harvest strategy for the scallop replenishment areas, which concluded that such a strategy will result in positive economic outcomes with little loss of spawning potential;

• evaluation of a winter-spring closure, which concluded a late winter-spring closure would have positive economic benefits;

• an initial attempt to standardise effort, which has since been considerably enhanced in a report by O'Neill et al. (in press); and

• initial development of an 18 parameter assessment model that retrospectively fitted catches and catch rates over time, and had the potential to develop some form of recruitment prediction.

A procedure has also been developed for standardising trawl effort and incorporating this into a more developed biomass dynamic model. Results from this model will be published as part of the forth-coming report to FRDC on Project No. 1999/120 (Michael O'Neill, Southern Fisheries Centre, pers. comm.). Effort standardisation for catches of tiger prawns, eastern king prawns and scallops is considered a priority for stock assessment models for these species. Catch–per–unit effort data series in these sectors has been standardised in DPI - FRDC funded Research Project No. 199/120 and is currently being peer reviewed (M. O’Neill, pers. comm.). A corrected catch–per–unit effort trend is being used to investigate various reference points to more precisely identify population abundance trends. When available, results of this work will be assessed for accurate integration in management of the fishery after completion of the project in early 2003.

Endeavour Prawns From 1988 to 2000 there was considerable annual variation in harvest trends. However there were no consistent increases or decreases. Given the high variability in tropical prawn fisheries generally, this fishery has been relatively stable. As with tiger prawns, the mean daily harvest has remained relatively stable with no obvious change. The adoption of improved navigation aids such as GPS by the fleet may have increased the fishing efficiency. The resulting increasing effective effort may give a slightly decreasing mean daily boat harvest (Williams 2002). Yearly catch rate data for endeavour prawns in the northern part of the fishery (Cape York to Broadsound) have also been fitted to a Schaefer non-equilibrium surplus production model, with possible effort creep scenarios factored in. The results indicated that the stock is fully exploited, however there have not been any apparent detrimental trends in the logbook catch and effort data indicative of sustainability concerns at current levels of harvest (Turnbull & Gribble 2002).

Banana Prawns The total Queensland harvest of banana prawns was very variable between 1988 and 2000. Mean daily boat harvest was far less variable with no clear upward or downward trend. Banana prawn harvests appear to be strongly influenced by climatic factors such as rainfall in some, but not all, parts of the Queensland coast. High rainfall and stream flow patterns in some areas of the state (particularly off Townsville) appear to be linked with high harvests of banana prawns (Williams 2002).


Page 37

Red Spot King Prawns The long-term harvest trend for this species is generally stable, but with wide annual variation. Whilst the possible decrease in fleet CPUE may be due to increasing effective effort, annual effort creep in the northern trawl fleet is relatively small. Production of red spot king prawns has varied widely and inconsistently between 1988 and 2000, from 520 t in 2000 and 1300 t in 1996. Mean annual harvest is about 840 t. Data collected in the early 1980s show these wide fluctuations have occurred throughout the life of the fishery (Williams 2002). Bugs There are two species groups of bugs harvested in Queensland, largely as a byproduct of trawlers harvesting prawns and scallops. They are Moreton Bay bugs (Thenus spp.) and Balmain bugs (Ibacus spp.). Bug catches are only reported at the genus level, but based on biological studies, the catch recorded can be divided on the basis of depth and geographic location. Total Queensland catches of bugs have shown some annual variability peaking in 1997 and 1998 and declining in 2000. This level of catch is primarily related to a decrease in fishing effort, especially in 2000 (Courtney 2002). On a state-wide basis mean daily catch per boat declined from 1992 to 2000, and there has been a decline in some major producing regions, especially in 1999—2000. In 2000, catches from the trawl fishery generally were low compared to recent years. Bugs typically display a low fecundity and low density, meaning they face some risk of overexploitation. However, the minimum legal size limit and protection of egg-bearing females are thought to be precautionary enough to prevent such a situation but catch trends will continue to be monitored in the future and additional measures may be introduced if required. It is also important to note that the introduction of Turtle Excluder Devices (TEDs) is likely to be a contributing factor to declining bug catches (TEDs exclude large objects such as bugs). Squid In 2000, the reported squid harvest from all sectors was 185 t with approximately 80% of the harvest taken from south of Caloundra (27°S). The harvest from inshore net fisheries in 2000 was less than 1% of the total (1.5t) with the remainder from trawl fisheries. Highest overall harvest from the trawl sector was reported in 1997 (232t) and from the net fisheries in 1991 (16 t). Harvest trends of squid are variable with between 125 t and 225 t reported annually from trawl and inshore net fisheries. Whilst there have been decreases in the Moreton Bay trawl harvest and in the small net fishery harvest, no declines are noted in other regions. Squid are more vulnerable to demersal trawls in daytime and at dusk and dawn when they are aggregated near the bottom. Most trawling in Queensland waters is undertaken at night when squid are dispersed throughout the water column. Eggs of neritic squids are attached to the bottom in clusters making them potentially vulnerable to damage from demersal trawling.


Page 38

No assessments of the status of squid populations in the ECOTF have been made due to a lack of scientific information about the dynamics of these populations. 1.1.3 The distribution and spatial structure of the stocks has been established and factored into management responses. Distribution and Spatial Structure of Target Stocks Spatial distributions of total catch for principal (target) species under the Trawl Plan are available from CFISH data, from fishery independent monitoring (scallops and tiger prawns) and from a range of published accounts of research into various principal species' distributions. The known locations of major nursery, recruitment and spawning areas have been taken into account in managing the harvest of each of these species. Closures appropriate to the location and timing of abundance in these areas have been progressively implemented over a period of 20 years to increase protection of the stocks from overfishing (Table 4). Table 4. Management responses appropriate to the spatial structure of principal species.

Species Spatial Structure / Distribution

Response

Eastern king prawns

Northward re-supply of recruits from NSW into southern Queensland

Closures in Moreton Bay and Great Sandy Strait protect juveniles post settlement

Tiger and endeavour prawns Juveniles and pre-recruits use coastal seagrass beds as nurseries

Multiple coastal strip closures protect seagrass habitats along Qld east coast

Red spot king prawns Post-larvae settle on reef flats of the GBR, adults captured in intershoal waters of the GBR lagoon

Reef tops and shoals unavailable to trawling; QFS and Marine Park closures of inter-reef areas adjacent to the GBR protect part of the fishable stock

Bay prawns (mixture of greasy prawns and juvenile king and tiger prawns)

Use seagrass beds as nurseries in Moreton Bay

Large areas of Moreton Bay closed to trawling

Saucer scallops High abundance areas between Yeppoon and Bustard Head

Rotational closures protect small scallops in high effort fishing areas

Bugs 90% of catch taken from approximately one-quarter of the CFISH logbook grids; 50% of catch taken offshore from Townsville and Gladstone

Protected during major seasonal closures in high catch areas and by permanent QFS and Marine Park closures in other areas

Squid Targeted by trawling when aggregated to spawn in some locations; spawning locations and times are poorly known

Spawners potentially protected within trawl closures.


Page 39

1.1.4 There are reliable estimates of all removals, including commercial (landings and discards), recreational and indigenous, from the fished stock. These estimates have been factored into stock assessments and target species catch levels. Estimates of Fishery Removals Commercial Landings and Discards Compulsory commercial fishing catch and effort data have been continuously collected through the compulsory CFISH logbook program since 1988. Weight/numbers of target species and landed by-product species are monitored through this program. There are currently no processes in place for validating catch and effort information provided through the logbook program. QFS is investigating options to allow estimations of total catch to be compared e.g. validation through an on-board observer program and buyer’s returns. The logbook program does however, have quarterly compliance runs to monitor logbook submissions. In 2000, a major assessment of effort data entered on the system was validated against archived logbook returns from fishers. Generally, consistency between records was found to be high, in the order of 90% (L. Williams, pers. comm.). The data has been utilised in stock assessments on the status of eastern king prawn, tiger and endeavour prawns, bugs and scallop resources. However, CPUE may not be an appropriate indicator of the abundance of adults of aggregating crustacean species. This has been identified as a major area for future research. Trends in State-wide annual catch data for major trawl species/species groups are reported in QFS Fisheries Resources Condition and Trend Reports (Williams 1997; Williams 2002). Spatial resolution is improving in the catch and effort data underlying these analyses from a 30x30 minute grid system for the 1988 to 2000 data to a 6x6 minute grid system from 2001 onwards. CFISH logbook catch and effort data is being applied to a range of deterministic stock assessment models to provide management with reference points for when intervention may be needed. However, the input-controlled nature of the trawl fishery management regime is not specifically directed at limiting catch levels for target species. Under the Trawl Plan, a minimum legal size of 15 cm carapace width (CW) applies to blue swimmer crabs and 7.5 cm CW to Moreton Bay bugs (Thenus spp.) and 10 cm CW to Balmain bugs (Ibacus spp.). Female blue swimmer crabs and egg-bearing bugs and barking crays (Linuparus trigonus) are also totally protected. There are currently no reliable estimates on the discard rate or post-release mortality of these species. Recreational Landings Recreational fish catch data were collected in 1986, 1996, 1998 and 2000. Further data collection through surveys at two-year intervals is under way the RFISH program. Recreational catches of trawled species are contained in survey summaries (e.g. Higgs 2001). Species commonly taken in the ECOTF also targeted by recreational fishers include blue swimmer crabs, banana prawns and squid. In 1998, an estimated 848,100 people went fishing for recreation, catching about 8,500 tonnes of fish. Only a small part of the recreational catch was made up of species taken by trawling – estimated to


Page 40

be about 270 tonnes of blue swimmer crabs and 7 tonnes of prawns (Higgs 2001). There is insufficient data to estimate recreational squid catches. The quantity of trawl species taken and discarded from the recreational catch is unknown. Indigenous Landings No data on indigenous catches of trawled species are routinely collected by the DPI. The National Recreational and Indigenous Fishing Survey undertaken during 2000/2001 will provide a snap-shot of indigenous take in selected communities of North Queensland. It is anticipated that results will be available in late 2002. In Queensland, indigenous persons have legal access to trawl fishery resources through holding a commercial fishing licence endorsed for use of trawl gear. Through the Cape York Partnership Program, the Queensland Government is assisting indigenous participation in the ECOTF and other fisheries through acquisition of available commercial fishing licences offered for sale (Colin Bishop, QFS, pers. comm.). Removal estimates in stock assessments In general, stock assessments for principal species in the ECOTF have been based upon commercial catch logbook data and research surveys of recruits (adults) on the fishing grounds and pre-recruits (juveniles) in nursery areas. More recently fishery independent data from the DPI LTMP are also being used to provide long-term trends in principal species recruitment and abundance (see response to Guideline 1.1.5). Most principal species occur in deeper mid-shelf waters and are not harvested by recreational or indigenous fishers because of the specialized and costly gear required to catch them. There is also a legal requirement to have a commercial fishing licence endorsed for the use of otter trawl gear. Consequently, there are few catch data for principal trawl species available from these sectors. Using the results of research trawls in the Far Northern GBR lagoon (Poiner et al. 1998), Gribble (2001) developed an entire biomass model (implicitly including all life stages for each species occurring within the study area) for simulating trophic interactions between major species of penaeids harvested in the ECOTF and other reef associated species of the ecosystem (see response to Guideline 2.3.2).


Page 41

1.1.5 There is a sound estimate of the potential productivity of the fished stock/s and the proportion that could be harvested. Productivity of Target Stocks The majority of target species in the fishery are recruitment driven, single-year class animals prone to moderate variation in recruitment levels through climatic change. Estimates of potential average productivity may mean little in a year-to-year sense. Consequently, the fishery is not managed to take a set proportion of the potential catch. Rather, it is managed to optimise sustainable productivity using a variety of input controls (eg effort reduction, gear modification and area closures). There are reasonably robust estimates for growth and natural mortality rates of all the major target species: tiger prawns (Somers and Kirkwood 1984), banana prawns (Lucas 1979), redspot kings (Dredge et al. 1990), eastern kings (Lucas 1974) and saucer scallops (Williams and Dredge 1980; Dredge 1985). Relative recruitment levels for some of these species [saucer scallops, north Queensland tiger and endeavour prawns and eastern king prawns] are monitored annually through the fishery-independent Long-Term Monitoring Program. Biomass dynamic models prepared for saucer scallops, north Queensland tiger and endeavour prawns and eastern king prawns can offer point estimates of stock productivity and exploitation levels relative to the optimal, but the model prepared for scallops has the very wide error limits one would associate with animals that have variable recruitment levels and a fishery based upon a single year class. The time series information collected in the LTMP surveys is being used by QFS scientists to provide predictive estimates of catch rates and total catch for the scallop fishery and will assist fisheries managers in ensuring the sustainable use of scallops in this fishery. A brief assessment of overall trends are summarised in Guideline 1.1.2.


Page 42

Management Responses Sustainable Fishing Reference Systems 1.1.6 There are reference points (target and/or limit), that trigger management actions including a biological bottom line and/or a catch or effort upper limit beyond which the stock should not be taken. Under Schedule 2 of the Trawl Plan a variety of specific review events are prescribed (Appendix 4). The consultation mechanism for a review is set out in s.230 of the Trawl Plan. In a review event QFS would obtain expert advice regarding the particular stock. This may involve seeking advice from scientists from other agencies, coordinated by the SAG. These experts would review all relevant data regarding the stock in order to understand why the review event had been triggered, and recommend appropriate management responses if required. Whether management intervention is required depends on the reason for the triggering. For some species (e.g. prawns, scallops), stock size (which may be reflected in commercial catch) may be far less important to recruitment success than environmental and hydrological conditions. QFS would be guided by advice from scientists in this regard. Management intervention would depend on the extent of any declines, the observed role of trawling in that decline and the characteristics of the specific stock. Interventions available to QFS include:

• an across-the-board reduction in fishing effort units through the issue of a revised effort unit certificate to each operator;

• spatial closures to protect spawning and/or nursery grounds;

• spatial closures to protect fished stocks: for some species, it is possible to identify where most of the catch comes from and closure of this area would provide protection to the stock as a whole;

• temporal closures, that allow a stock to re-build;

• changing the species from a principal fish to a permitted fish, which would mean it could not be targeted. Further, QFS would have the ability to impose in-possession limits. This would only be effective in species that have low discard mortality;

• increasing legal sizes for the species, which would allow greater reproductive activity before individuals can be taken. Again, this is only likely to be effective in species that have low discard mortality;

• amending provisions for gear that can be used in certain areas, to minimise the take of the species; and

• prohibiting all take of the species. Principal Trawl Species Review Events The main indicator of sustainable harvest in the fishery is nominal (semi-standardised) catch-per-unit-effort (CPUE) data (Dichmont et al. 1999). This provides an estimate of


Page 43

fishery performance measured against a set sustainability target (reference level) under the Trawl Plan. A review event is triggered if CPUE for a principal fish is less than 70% of the average CPUE during specified months in the period 1988 to 1997. Analysis of the CFISH logbook data provides the most direct way of determining the trawl catch and fishing effort. The assessments undertaken to derive the trigger points for the principal species took place during 1998. A Scientific Working Group advising Trawl MAC presented a model for triggering a management review in the event that CPUE for any of the principal species was lower than a baseline (reference level) established for the period from 1988 to 1997. The limit reference point, which is assessed during key periods of each species' fishery, is based upon the percentage decline in CPUE of a documented recruitment overfishing event for tiger prawns in Western Australia. A working group was recently formed under the Scientific Advisory Group to discuss improvements to Trawl Fishery Review Events as outlined in the Trawl Plan including use of the ‘70% of CPUE’ as a reference point. Models are being developed for assessing eastern king prawn and scallop fisheries as part of a research project [DPI FRDC 99/120]. Existing and alternative reference points based on these models will be tested and more robust reference points recommended for each principal species. DPI FRDC Research Project No. 99/120, due for completion in late 2002, will also recommend techniques to allow CPUE data to be standardised. That is, when catch rate data from the industry is used as a long–term measure of prawn and scallop abundance, estimates will be compared correctly and adjusted for any gear differences between vessels and over time.


Page 44

1.1.7 There are management strategies in place capable of controlling the level of take. Management Controls Effort capping and reduction, spatial and temporal closures and gear restrictions are the major management measures controlling the level of take in the fishery (Appendix 2). Effort Capping and Reduction Capping effort in the fishery at the 1996 level and reducing fishing capacity of the fleet through a voluntary licence surrender buy-back scheme has effectively removed latent effort in the fishery. The time that the remaining fishers can spend fishing for target species is controlled through allocation of effort units (fishing days) based on the product of individual operators’ historical participation in the fishery and standardised hull units (QFS 2000). The take of retained species is further limited through the total removal of effort from permanent inshore and offshore spatial closures and removal of effort for part of the life cycle of retained species across extensive frequently trawled areas through seasonal closures. There is also an annual cap on the number of fishing and steaming days in the GBRMP. Review of Steaming Days In addition to an entitlement to fish for an allocated number of days, each boat in the fishery can be used for 4 ‘steaming days’. These steaming days primarily allow for non-trawling activities discriminated from fishing activity using VMS. Under the Trawl Plan, fishers can also take fish during a steaming day. Originally 14 steaming days were issued to each licence holder. However, following the November 2001 Review of Steaming Days required under the Trawl Plan, this was reduced to four. Boat Replacement For replacement of a boat with a ‘T1’ or ‘T2’ licence, the boat replacement provisions under the Trawl Plan requires a certain number of effort units to be surrendered. The number of effort units depends on the size of the replacement boat. In recognition that a licence holder replacing their boat surrenders significant effort units, the Trawl Plan provides for a licence holder to purchase effort units to limits denoted under Schedule 5 of the Trawl Plan without the 10% surrender provision. Effort Unit Trading and Licence Surrender/Transfer Provisions When effort units are transferred licence holders are required to surrender units as follows:

• transfer of effort units only (i.e. no licence being transferred) requires surrender of 10% of the effort units being transferred.

• transfer of effort units with a licence requires the surrender of 5% of the effort units transferred, except in the case of a transfer from a deceased estate.

These mechanisms have contributed to the fewer boats, a reduction in fishing effort and it is contended an associated reduction in the level of take in the fishery since the inception of the Trawl Plan in 1999. Although effort has been steadily decreasing since about 1997, the rate of effort reduction that can be attributed to the Trawl Plan (2000 to 2001) is greater than in previous years (Fig. 10).

800

850

900

950

80000

100000

120000

shed

)


Page 45

Figure 10 Annual days fished and fishing vessels in the ECOTF, 1988 to 2001. Closures The major permanent trawl closures listed below were introduced into waters of the Great Barrier Reef World Heritage Area in December 2000. There had been little or no historical trawling occurred in these areas, and they were recognised as fishery refugia capable of contributing larger individuals, highly fecund spawners and valuable nursery habitats for several target species (e.g. red spot king prawns and scallops). Major permanent closed areas include:

• Cape York to Townsville offshore area;

• Cairns to Bowen offshore area;

• Swains Reef area;

• Shoalwater Bay area;

• Yeppoon offshore area; and

• Gladstone offshore area. General seasonal closures protecting the stocks within most of the fishery for part of their life cycle are: the Northern closure, the Southern closure and Swain Reef and Hydrographer’s Passage closure.

Under Schedule 3, Part 3 of the Trawl Plan there are also more than 150 specific closures in force. These closures have been established for a variety of reasons. The following are examples of the closures in place to control the level of take on target species:

• Scallop replenishment areas: There are 10 closed areas in the main scallop grounds from Hervey Bay to Yeppoon. The areas are closed on a rotational basis over a number of years, with between 5 and 8 areas closed at any one time. The main purpose of these closures is to provide protection to spawning stocks of saucer scallops.


Page 46

• Southern Hervey Bay: This closure, from 30 June to 31 October each year, was introduced to prevent trawling from interacting with spawning winter whiting, an important recreational species in this area.

• Hook Point to Taleerba Creek Fraser Island: This closure was introduced to maximise the value of king prawns by closing an area where small prawns are commonly found and allowing them to grow to larger sizes prior to harvest.

There are further details regarding closures in Appendix 2, section 5.5 Gear restrictions Under the Plan, restrictions on vessel size, engine power, head rope length, and net mesh size apply to the fishery to ensure that the efficiency of current trawling activity does not exceed current levels (Appendix 2, section 5.3).


Page 47

Management of Non-target (By-product) Species 1.1.8 Fishing is conducted in a manner that does not threaten stocks of by-product species (Guidelines 1.1.1 to 1.1.7 should be applied to by-product species to an appropriate level). There is a reliable information collection system in place appropriate to the scale of the fishery. The level of data collection should be based upon an appropriate mix of fishery independent and dependent research and monitoring.

Information Requirements Provision is made for recording trawl catches of permitted fish species as a separate category in the new logbook (OT07) (Appendix 5), which was operational from July 2000. The capture of permitted fish (by-product) was in general not recorded on the previous logbook (OT06). This change in reporting method will need to be taken into consideration when interpreting the most recent catch-and-effort trends. Because the OT07 logbook was only recently introduced, limited catch-and-effort information is available for many of the permitted fish. Annual catch-and-effort can be monitored and the situation reviewed as more data becomes available. By-product species are also monitored as a component of catches in the fishery independent scallop trawl surveys of the DPI Long Term Monitoring Program (see response to Guideline 1.1.1) Historical catch-and-effort data obtained from the CFISH database for permitted fish are scant and inconsistent. Before 1 May 1999, taking species other than prawns or scallops by trawling was not specifically provided for in fisheries legislation. Therefore, reliable information on catches and effort applied to harvesting these species is limited. Another problem in analysing the historical catch information is the lack of accuracy in the species being reported. Bugs and crabs are particular concerns because several species with different characteristics have been grouped into one category. It is recognised that, because all “crab unspecified” was considered to be blue swimmer crab, this would lead to an overestimate of the blue swimmer crab catch and an underestimate of the three-spot and coral crab catch. Consequently, actual historical catches and fishing effort for permitted fish in the trawl fishery are uncertain (QFS 2001).

Assessments There is a robust assessment of the dynamics and status of by-product species in the fishery and periodic review of the process and the data collected. Assessment should include a process to identify any reduction in biological diversity and /or reproductive capacity. Review should take place at regular intervals but at least every three years. Limited information is available about the biology, ecology and stock status of many of the permitted fish in the ECOTF. However, a recently commenced DPI Research Project (No. 2000/170) funded by the FRDC, is studying key elements of the biology, population dynamics and exploitation of these species. The project is also conducting a review of the biology and distribution of permitted fish, is assessing the temporal and spatial distribution of the Queensland landings, and quantifying key elements of their


Page 48

population dynamics. The project is expected to be completed in June 2003, and will help the development of future assessment procedures and management arrangements for permitted species. The distribution and spatial structure of by-product species stocks has been established and factored into management responses. Assessment of the spatial distribution of trawl by-product species was undertaken as part of the Permitted Species Review in August 2001 (QFS 2001). Recommendations of the Review taking into consideration the spatial distribution of the species and fishing effort became part of the management regime for the fishery through a December 2001 Amendment to the Trawl Plan including:

• additional output controls on trawl-caught blue swimmer crabs based on spatial distribution of effort from other fishing sectors;

• spawning areas for cuttlefish are ill-defined, output controls are proposed;

• removal of goatfish and whiptails from Permitted trawl species will effectively prevent targeting these species across their range and especially in high catch areas of north Qld waters and Moreton Bay respectively;

• output controls on mantis shrimps based on localised catches;

• output controls on pinkies in addition to existing spatial closures adjacent to localised catching areas in central Qld waters;

• removal of sharks as Permitted trawl species based partly on the high risk to carcharhinid sharks and other coastal shark species within the fishery area.

At present there is limited spatial information on which to base management decisions about preferred habitats / areas of high catches of byproduct species in the major trawl sectors. Further more detailed assessment of by-product species is currently under way in DPI-FRDC Research Project 2000/170. It is expected a report to guide sustainable fishery management of permitted species will be available by mid-2003. There are reliable estimates of all removals, including commercial (landings and discards), recreational and indigenous, from the fished stock. These estimates have been factored into stock assessments and target species catch levels. Commercial Landings In August 2001, the Permitted Species Review prescribed under Chapter 5 Part 2 of the Trawl Plan was completed for non-target species taken and retained in the fishery. The purpose of the review was to determine if the taking and possession of each permitted fish should be regulated by number. CFISH logbook data were analysed to provide catch-and-effort information for a majority of species in the Review. Total annual catch (excluding the highest and lowest 10%) for most permitted fish are presented in Table 5. In addition, other commercial fisheries take the following trawl by-product species:

• an annual catch of 300 to 450 t of blue swimmer crabs and relatively small catches of red spot crabs in the southern Queensland crab pot fishery;


Page 49

• sporadic reports of small numbers of cuttlefish and octopus in the inshore set gill net fishery; and

• an increasing catch of sharks in the inshore set gill net fishery (1,000 t in 2000) and a small catch of sharks in the line fishery (43 t in 2000).

•

• Table 5. Annual recorded landings of by-product species in the ECOTF in 2001

Species Quantity

blue swimmer crab (Portunus pelagicus) 167 t

Balmain bug (Ibacus sp.) 60 t

cuttlefish (Sepia spp., Metasepia sp) 61 t

shark (Carcharhinus spp.) 16 t

octopus (Octopus spp.) 25 t

red spot crab (Portunus sanguinolentus) 17 t

pinky (Nemipterus spp.) 14 t

mantis shrimp (Squilla sp., Oratosquilla sp.) 3 t

goatfish (Parupeneus spp,. Upeneus sp.) 14 t

barking crayfish (Linuparus trigonus) 50 t

whiptails (Pentapodus spp.) <1 t

pipefish (Solegnathus hardwickii, Solegnathus dunckeri) 7394 individuals

Recreational Landings Several trawl by-product species are taken in recreational pot fisheries with annual catches of about 200 tonnes of blue swimmer crabs and a small number of red spot crabs (Higgs 1999). There are no other recreational catch data for other by-product species. Indigenous Landings There is no data available on indigenous catches of by-product species taken in the fishery. The Queensland Government is currently assisting indigenous communities participate in commercial harvesting operations (see response to Guideline 1.1.4). There is a sound estimate of the potential productivity of the fished stock/s and the proportion that could be harvested. No estimates of available biomass are available for any permitted species under the Trawl Plan. The elucidation of basic biological parameters being undertaken as part of DPI FRDC Research Project 2000/170 and development of assessment procedures will enable productivity estimates to be made, but this will not be feasible for some years, due to a lack of time series data.


Page 50

Management Responses There are reference points (target and/or limit), that trigger management actions including a biological bottom line and/or a catch or effort upper limit beyond which the stock should not be taken. Stock assessments have not been undertaken for byproduct species in the ECOTF and no reference points to trigger a management response have been set. QFS is currently reviewing 'review events' for Permitted Species in the fishery, but it is difficult to assign reported fishing effort to non-target species and hence undertake quantitative assessments based on available fishery dependent data such as CPUE. The future development of biological reference points will be subject to information on population parameters for these species groups (growth and reproduction rates) being gained in DPI FRDC Research Project No. 2000/170 and due for completion in June 2003. Appropriate reference points and review events for byproduct species are being considered as part of the development of a comprehensive assessment and monitoring strategy for the fishery to be developed in 2003. There are management strategies in place capable of controlling the level of take. Mechanisms are in place designed to reduce impacts on non-target species and limit the range of species currently targeted in the fishery. Permitted Species Review The Permitted Species Review completed in August 2001 resulted in a number of legislative amendments with the firm intention that by-product should not be the subject of target fishing by the east coast trawl fleet. This position is reinforced by a number of existing provisions in the Trawl Plan. Should commercial operators wish to develop specific target fisheries for by-product, the Queensland Fisheries Service (QFS) would need to consider this within the context of it’s Policy for Exploratory and Developmental Fisheries. The Trawl Plan required that a review of by-product be undertaken before 1 January 2002 to determine whether possession limits should apply and, if so what the limits should be (section 226 of the Plan). The review has been conducted, resulting in the introduction of in possession limits, and a number of other measures (eg prohibited taking of berried females) have been placed on harvest of these species. These arrangements are a further step towards providing greater confidence in limiting the scope for the fishery to expand its operations beyond the harvest of principal fish. Take and Possession Limit on Blue Swimmer Crabs Blue swimmer crabs (Portunus pelagicus) remain as a permitted fish under the Trawl Plan. Their current take and possession by trawl operators is limited to 100 crabs taken in Moreton Bay and waterways joining it (for definitions see Schedule 7 of the Plan) and 500 elsewhere, with a prohibition on taking and possessing female crabs, or those under 15 cm carapace width (or body less than 3.7 cm). Take and Possession Limit on Pipefish Pipefish had been identified in Schedule 7 of the Trawl Plan denoting two main species taken a byproduct (Solegnathus dunckeri and Solegnathus hardwickii). In a general context, pipefish include all members of the Family Syngnathidae, which also includes a large number of other species, some of which are listed as ‘vulnerable’


Page 51

under the IUCN Red Book. These two species are believed to constitute most of the current syngnathid trawl harvest. Recognising that these species cannot be targeted, their catches are incidental during trawling for the principal species, and that they exhibit high mortality once caught in trawl nets, a limit of 50 pipefish in total has been introduced. Size Limit on Balmain Bugs Egg-bearing female Balmain bugs are currently protected under the Trawl Plan. In the Trawl Plan ‘Balmain bugs’ are identified as Ibacus spp.. The majority of the catch is likely to be I. peroni, but other bug species of the genus Ibacus may also be caught in Queensland waters. Due to their biological characteristics, Balmain bugs may be vulnerable to overexploitation. A size limit of 10 cm carapace width has been introduced to protect 50% of the breeding female bugs, and is consistent with NSW regulations for similar bug species. Protection of Breeding Female Barking Crayfish Since the Trawl Plan’s introduction in 1999, limited catches of barking crayfish (Linuparus trigonus) have been taken by trawl operators working in some of the State's deepwater trawl grounds. However the commercial fishing industry maintains that they are a significant species to some operators. Egg-bearing female barking crayfish are protected under the amendment, to maximise the recruitment success once individuals have reached breeding potential. Take and Possession Limit on Cuttlefish Cuttlefish (Sepia spp., Metasepia pfefferi) significantly contribute to the income of some trawl operators. As some cuttlefish species aggregate to spawn, spatial and/or temporal closures would protect stocks against over-exploitation. However, their spawning behaviour is not known in enough detail to design effective closures based on current detail. To prevent targeting of them when they are vulnerable, whilst providing for a limited take, there is a limit of 66 litres on their take.6 Remove Goatfish as a Permitted Fish Goatfish (Family Mullidae) were a permitted fish species in the Trawl Plan prior to the December 2001 amendment but were of low economic value and largely insignificant in the catches of most operators. Goatfish have been removed from the permitted species list i.e. their take and possession by trawl operators is prohibited. Take and Possession Limit on Mantis Shrimp While only low mantis shrimp (Family Squilloidea) catches were reported during 2000, 95% of this catch was reported as being taken from Moreton Bay. Mantis shrimp are known to be captured in deeper waters outside of Moreton Bay, but are usually discarded as they are of limited value and require careful and specialised handling, which sometimes cannot be carried out during extended offshore trips.

A limit of 15 L on their take and possession by trawl operators has been introduced. This allows small quantities to be taken by Moreton Bay operators, but will not allow existing exploitation rates to increase. 6 The volume of a standard fish bin is 66 litres. Take and Possession Limit on Octopuses A diverse suite of octopuses (Octopus spp.) is taken by trawl operators, including many species and sizes from various habitats throughout the fishery. It is not currently practical to impose size restrictions or to apply limits on taking particular species.


Page 52

A limit of 66 litres on the take and possession of octopuses by trawl operators has been introduced. This allows a continued harvest, without exposing stocks to any targeted increase above existing levels of fishing effort. Take and Possession Limit on Pinkies While only a small number of boats report catching pinkies the fishery (Nemipterus spp.), they are an important component of the byproduct to a number of operators in the Central Queensland region. It is likely that Bycatch Reduction Devices (BRDs) and area closures are already effective in reducing the trawl take and impact on pinkies. Further, they appear to have biological characteristics that would make them robust to fishing pressure. A size limit on pinkies could not be effective due to the large number of species potentially taken by trawl operators, therefore alternative measures are required to ensure their sustainability. There is a limit of 198 litres on the take and possession of pinkies to ensure that the catch does not increase beyond current levels. Restrictions on the Take and Possession of Red Spot Crabs Red spot (or three spot) crabs (Portunus sanguinolentus) contribute considerable economic benefit to trawl operators, particularly in south east Queensland. Given that red spot crabs are not an important species to either commercial or recreational pot fishers, continued trawl access to this species has been allowed. To ensure the future sustainability of stocks and to prevent targeting and increased levels of harvest by trawl operators, two measures have been implemented: a minimum size of 10 cm carapace width; and the prohibition of the take and possession of females. Restrictions on the Take and Possession of Sharks The Fisheries Regulation 1995 prohibits the take of grey nurse sharks and great white sharks. Sharks (Carcharhinus spp. and other species) are recognised target species in the commercial net and commercial line fisheries. In comparison, the take in the trawl fishery is relatively insignificant. The compulsory use of Turtle Excluder Devices (TEDs) in the fishery has reduced the shark take as large sharks cannot pass through the grids. BRDs also effectively allow free-swimming fish such as small sharks to escape from the net. Whilst the population status of shark species taken by trawlers in Queensland is unknown, it is widely recognised that long-lived shark species of low fecundity are vulnerable to overexploitation. Consequently QFS has adopted a cautious approach to their management and has removed all shark species from the permitted species list. Assessment of current management measures to further reduce shark bycatch in the fishery are future actions for implementation under the National Action Plan - Sharks. Remove Whiptails as a Permitted Species During 2000, a dozen boats reported catches of whiptails (Pentapodus spp.). Total catch amounted to less than one tonne. Whiptails have low economic value and are largely insignificant to the vast majority of operators in the ECOTF, with two-thirds of the whiptail catch taken in Moreton Bay (QFS 2001). Whiptails have been removed from the permitted species list in the Trawl Plan, effectively prohibiting trawl operators from having them in possession.


Page 53

1.1.9 The management response, considering uncertainties in the assessment and precautionary management actions, has a high chance of achieving the objective.

Evaluation of Management Measures The Fisheries Act 1994 formally commits the Qld Government to the principles of ESD in executing its responsibilities for managing the State’s fisheries resources (Anon. 1996). The Trawl Plan reinforces this commitment and the appropriate use of a precautionary approach in dealing with uncertainty. The lack of appropriate information on which to base well informed decisions about sustainable outcomes has been a concern to QFS fishery managers. Management measures have been implemented on the best information and expert advice available from the SAG, Trawl MAC, AFFS and the industry. Additional precautionary management actions are implemented where continuing unsustainable practices are suspected (see response to Guideline 1.2.1). Historically, management of principal species in the trawl fishery has followed a yield optimisation strategy. However, there has recently been a substantial shift to managing for sustainable harvesting levels in a broader ecosystem context. Seasonal and permanent closures have been introduced, protecting target and bycatch species for a greater part of their lifecycle. There has been a substantial reduction of effort in the fishery and since 1 January 2002 the use of TEDs and BRDs has been compulsory. The recommendations of the recent Permitted Species Review (October 2001) emphasise continued and sustained efforts by QFS to limit potential for direct fishing of these species (see response to Guideline 1.1.8). A number of positive measures have also been implemented recently to provide better data to support management decisions. For example, the introduction of the OT07 logbooks in 2000, has for the first time allowed the capture of medium resolution data (6 nm grid) on both target and by-product species. Recording of fine resolution fishing effort data (latitude and longitude) has also been made possible by the mandatory installation of VMS transponders on all vessels in the fishery. These changes in the collection of fishery dependent data, are providing information that indicate trends in the status of fish stocks at a finer level than was previously possible. This allows more detailed assessment of the impact of fishing operations at a local level thus reducing the level of uncertainty in the outcomes of spatial management of the stocks. QFS regularly provides updates to the Trawl MAC and its SAG so they can advise fishery managers of the performance of the fishery at least quarterly. This will alert managers to indicators showing early signs of potentially unsustainable harvesting levels. Where a review event under the Plan is triggered, QFS will promptly coordinate consultation with the fishery stakeholders through the SAG. Management intervention will be commensurate with the perceived level of threat to the fished stock from overfishing based on expert opinion. Major management interventions available to QFS are detailed in the response to Guideline 1.2.1. Given that:

• evidence of recruitment overfishing has not been a significant management concern in 10 of the 12 principal target species for the past 30 years;


Page 54

• effort capping and reduction will reduce exploitation rates and increase residual spawner levels; and

• spatial management (extended permanent and seasonal closures, scallop replenishment areas) will further reduce exploitation levels for most target species

the Trawl Plan has enacted measures to reduce the risk of overfishing, and to improve the continuity and consistency of data for management decision-making over time. Progress in meeting the Plan’s sustainability objective for retained species has been made and will continue as key research findings are phased into a sustainable management regime for the fishery. In particular, development and testing of alternate sustainability reference systems is under way through current research. This will enable regular monitoring and robust assessments of stock status against scientifically-derived reference points and more clearly determine the level of risk of overfishing associated with those management strategies currently used against others that may be available. Given the changes that have occurred in management including substantial restrictions on fishing efficiency due to limits on fishing gear, effort reduction and spatial closures, and with more closures foreshadowed in the GBRMPA’s Representative Areas Program, the risks of overfishing have greatly diminished.


Page 55


Page 56

Objective 2. Where the fished stock(s) are below a defined reference point, the fishery will be managed to promote recovery to ecologically viable stock levels within nominated timeframes.

Precautionary Recovery Strategies 1.2.1 A precautionary recovery strategy is in place specifying management actions, or staged management responses, which are linked to reference points. The recovery strategy should apply until the stock recovers, and should aim for recovery within a specific time period appropriate to the biology of the stock. and 1.2.2 If the stock is estimated as being at or below the biological and / or effort

bottom line, management responses such as a zero targeted catch, temporary fishery closure or a ‘whole of fishery’ effort or quota reduction are implemented.

For the purposes of measuring the long-term sustainability of catches of principal species in the ECOTF, CPUE is used as an indicator of relative abundance. Monitoring 2000/2001 data has shown CPUE for all principal species to be above the defined reference points under the Trawl Plan (see below). Under the Trawl Plan a variety of review events are required if there is evidence stocks have declined beyond certain limits or reference points (Appendix 4 and response to Guideline 1.1.6). The main trigger is if CPUE for a principal fish is less than 70% of the average CPUE during specified months in the period 1988 to 1997. The appropriateness of all the reference points, particularly the 70% CPUE reference point, are being assessed by a working group appointed in early 2002 by the Scientific Advisory Group (SAG). Stock assessment models for major target species are being currently being developed as part of DPI FRDC Project 1999/120 (see Table 2 in response to Guideline 1.1.2) and reference points will be derived from these during 2003. In addition there are several internationally accepted reference points that may have relevance to this fishery. These new and existing reference points will be tested in the models to determine the most appropriate reference points for review events to ensure sustainability of the fishery. They will then be presented to stakeholders. Methods to standardise CPUE data are also being developed. Decision rules and an action plan in the event that a review event is triggered are also being developed. Regular monitoring of catch rates for principal species and measurement against reference systems is in place to alert managers to trends in harvesting levels. Where a review event is triggered, QFS coordinates prompt consultation with industry and other stakeholders through Trawl MAC and its SAG. An expert scientific panel will assess available data; determine the cause of the decline and recommend appropriate management strategies. As this is a diverse multi-species fishery the management strategy recommended will depend on a variety of factors including the species that is affected, the location of the decline, the impact of trawling on the stock and the magnitude of the decline. The implications of the management strategy on other stocks must also be considered. There are a variety of management strategies that could be used (see response to Guideline 1.1.6).


Page 57

Resource depletion below a widely accepted reference point has not been demonstrated for principal or permitted species in the fishery. Both eastern king prawns and saucer scallops show negative trends in stock level indicators, but there is no evidence current fishing levels are unsustainable. Standardised CPUE data shows a long term decline for eastern king prawns, the trend for scallops is not clear. There are major practical and theoretical difficulties in determining appropriate reference points for single year class fisheries, the simplest of which revolve around recruitment variation. It is not likely that it will be realised that a point of recruitment overfishing has been reached until the stock is fished down to a level that provides unequivocal empirical evidence that overfishing has occurred. The fact that up until recent management changes were introduced in the Trawl Plan, the ECOTF has maintained production at a reasonably stable level for its principal species over the past 20 years, indicating that for these species at least, harvest rates are sustainable. The current and improved reference point system for review events will ensure this continues. It is intended that the current review of the reference points will provide an improved sustainability reference system that will allow overfishing to be readily identified if and when it occurs. Potential overfishing needs to be reviewed on a case-by-case basis. There is a hierarchy of management options available depending on the severity of the issue and nature and duration of an appropriate response. In order of increasing impact on the fishery, managers may:

• make an emergency declaration or fishery closure under s.46 of the Fisheries Act;

• implement a change in management by regulation;

• amend the Trawl Plan; or

• amend conditions of a fishing licence. The use of one or more of these management options will take full account of the likely impacts of the management actions over a range of time scales with respect to assisting the recovery of the stock. While these actions may be taken at any time, the duration of existing arrangements expire with the Trawl Plan. For example the scallop preservation areas will continue to protect the spawning biomass of saucer scallops through closures on 15 to 27 month rotations until 1 September 2010. This will allow small scallops to reach maturity; spawn and re-seed areas closed and adjacent areas open to fishing before they are harvested. At the opening of each closure, large older scallops with a high value to fishers become available for harvesting. Assessment Of the Management Regime Against Principle 2


Page 58

PRINCIPLE 2: Fishing operations should be managed to minimise their impact on the structure, productivity, function and biological diversity of the ecosystem.

Objective 1. The fishery is conducted in a manner that does not threaten bycatch species.

Threats to Bycatch Species

Information Requirements 2.1.1 Reliable information, appropriate to the scale of the fishery, is collected on the composition and abundance of bycatch. Bycatch Composition

• ‘Bycatch’ as defined in the Guidelines are:

• discards of commercially valuable species;

• species that are discarded from the catch;

• fish that are retained for scientific purposes;

• that part of the catch that is not landed but is killed as a result of interaction with fishing gear.

This section includes assessment of discarded target and non-target species, protected or undersized principal and permitted species of fish, crustaceans and molluscs under the Trawl Plan and scientific samples from current research and fishery independent monitoring. Species of conservation concern listed in the Commonwealth’s Environmental Protection and Biodiversity Conservation Act 1999 (ie. sea turtles, sea snakes and syngnathids) are excluded from this section. They are assessed in response to Guideline 2.2.2. No data are available for benthic invertebrate species ‘killed as a result of interaction with fishing gear’, but not captured by the gear. However, modelling of resilience - recovery dynamics of benthic communities in the GBR lagoon has been attempted by Pitcher et al. (2000), and is considered in the response to Guideline 2.3.2 ‘Benthic Communities’. Fishery Dependent Information Non-target, commercially valuable species taken and retained as by-product, must be recorded under the Trawl Plan (see response to Guideline 1.1.8). Other non-target bycatch species (excluding sea turtles) are usually brought onboard, sorted from the targeted product and discarded without being recorded (see response to Guideline 2.2.1 for turtle-related capture data). There is no legal requirement for fishers to report discarded bycatch species through the logbook (except in regard to sea turtles). However, planned logbook amendments for 2003 include the requirement to report all species that are of conservation concern listed under the EPBC Act 1999 that are taken as bycatch.


Page 59

Use of bycatch reduction devices (BRDs) has been compulsory under the Trawl Plan since 1st July 2001. Compliance with this provision of the Trawl Plan is expected to significantly contribute to achieving the 40% reduction in bycatch by 1 January 2005 proposed under the Trawl Plan. Since January 2001 there has been provision in the ‘OT07 trawl fishery logbook’ for recording the use of BRDs and the type of BRD fitted. There is also provision in the logbook for recording the type of turtle excluder device (TED) that is fitted. TED’s not only exclude turtles but also large fish such as sharks and rays. Fishery Independent Information The composition and spatial distribution of trawl bycatch species have been reported in a number of studies within the operational area of the ECOTF (Cannon, Goeden and Campbell 1987; Jones and Derbyshire 1988, Watson and Goeden 1989; Watson, Dredge and Mayer 1990; Robins and Courtney 1998; Poiner et al. 1998). During experimental trawls in the banana prawn trawl sector, an estimated 55% reduction in bycatch has been achieved through the adoption of BRDs (which contributes about 7% of the total landings of Queensland’s trawl fisheries) (Stobutzki et al. 2000). A current FRDC Project (No. 2000/170 - due for completion by mid-2003) will determine the composition and abundance of bycatch in the scallop, eastern king prawn and tiger/endeavour prawn sectors of the ECOTF. This data is also being used to estimate and compare the effects of BRDs and TEDs fitted to the commercial trawl gear of boats in each trawl sector. Catch comparisons for bycatch and target species using standard trawl gear and gear modified with a BRD and TED fitted to the net, are available from chartered trawls in the tiger prawn and eastern king prawn sectors of the fishery (Table 6). Bycatch and target species catch comparisons between standard trawl gear and BRD/TED-modified gear for the scallop sector of the fishery, are not yet available. While this work is still progressing, it appears there may be potential to reduce bycatch in this sector by 20-30% using an appropriate BRD and TED fitted to each net. The adoption of BRDs is also likely to reduce catch rates of targeted and byproduct species in some sectors (Table 6).

Table 6 Preliminary estimates for effects on bycatch and target species components of the catch using gear modified with a BRD and TED compared with standard trawl gear.

Sector TED/BRD modification

Effect on bycatch Effect on target species (prawns)

Tiger/Endeavour TED + radial escape section

marginal (approx. 9% reduction) at the P<0.1 level of significance

Not significant

Shallow water Eastern King Prawn (30 – 100 m)

TED + radial escape section

approx. 26% reduction at the P<0.001 level of significance

approx. 17% reduction at the P<0.05 level of significance

Deep water Eastern King Prawn (100 – 200 m)

TED + square mesh codend

29% reduction at P<0.001 level of significance

Not significant


Page 60

A Synopsis of Bycatch Research Findings Jones and Derbyshire (1988):

• demersal trawl fauna of the central Qld coast (Bowen to Lucinda - Queensland red spot king prawn fishery) is tropical west Pacific in affinity – with many species broadly distributed in the region;

• demersal fauna is characterised by high species diversity and low numerical abundance within individual taxa;

• crustaceans represented only 20% of the total biomass of the catch (research trawl);

• the majority of finfish were small demersal species (Bothidae, Paralichthydiae, Mullidae, Monacanthidae, Synodontidae and Nemipteridae);

• commercially important finfish (particularly Lutjanidae, Lethrinidae and Serranidae) occurred infrequently and only as juveniles;

• very little coral reef-associated fauna is taken by trawling of inter-reefal areas; and

• five species of sea snake (Hydrophiidae) were recorded (see response to Guideline 2.2.2: protected species).

Hill and Wassenberg (2000):

• bycatch from prawn trawling in a region of the northern GBR closed to fishing comprised (by weight) primarily fish (69%), sponges (11%) and crustaceans (10%);

• it was estimated that 12% of bycatch survive (a high percentage of crabs and bivalves survive, 2% of fish and the more robust echinoderms);

• 33% of fish, 45% of cephalopods and over 90% of other groups float when discarded;

• 80% of all discards sink, and the majority are scavenged by fish, sharks and isopods;

• floating bycatch is consumed by crested terns, frigatebirds, brown boobies, dolphins and sharks.

Poiner et al. (1998):

• studies of epi-benthic invertebrates and fish in the Far Northern GBR found a high diversity of species, with 765 species recorded; and a strong cross-shelf (east-west) variation;

• communities were patchy in distribution; and consisted of sessile invertebrates such as sponges, corals and gorgonians, which contained a diversity of associated fauna (such as echinoderms, crustaceans and fish);

• studies of fish communities in the same area found that biomass of fish was less in the outer GBR lagoon than in the inshore lagoon, however the number of species was greater; the reverse was true for epi-benthic communities, with a lower biomass in the inner lagoon, but greater number of species.


Page 61

• the vast majority of fish caught in fish and prawn trawls were less than 30 cm in length.

Robins & Courtney (1999):

• bycatch from trawling in the eastern king prawn sector off southern Queensland is 66 – 85% fish. Common species include stout whiting, leatherjacket, tongue sole, toadfish, flathead, grinners, spiny head flounder and red spot gurnard;

• estimates of total annual bycatch from the red spot king prawn sector off central and north Queensland are between 7150 t (Robins & Courtney 1998) and 8000t (Hill and Wassenberg 2000);

• total annual bycatch from the tiger /endeavour prawn sector is estimated to be in the order of 10260 -19200 t.

Stobutski et al. (1999)

• offer a baseline for bycatch community structure and possibly, abundance in the banana prawn fishery.

A DPI - FRDC-research project on the use of on-board hoppers in the banana prawn trawl fishery is assessing whether these devices are capable of enhancing survivorship of bycatch species before they are returned to the water. This project started in 2002 and results are not expected until mid-2003. An inventory of demersal species associated with scallop trawl grounds has been compiled from the year 2000 annual scallop surveys that are a part of DPI’s LTMP (see response to Guideline 1.1.1). This monitoring is being updated again in 2002.

Assessments 2.1.2 There is a risk analysis of the bycatch with respect to its vulnerability to fishing. The recovery of benthic invertebrate communities disturbed by trawl fishing has been studied extensively in other parts of the world and in the Far Northern Section of the GBRMP (see response to Guideline 2.3.2). Whilst light to medium frequency trawling has no measurable long-term impacts on benthic community structure or the abundance of individual taxa (e.g. Pitcher et al. 1997), cumulative impacts of trawling in the GBR may include the depletion of vulnerable fauna, the movement of benthic faunal community structure towards less vulnerable species, and less overall biomass (Pitcher et al. 2000). However, the trawl fishery is highly aggregated with about 20% of effort concentrated in less than 5% of trawled grounds (intensive trawled) and a further 20 % of effort spread over about 60% of trawled grounds (extensive trawled). If the whole GBR is considered, only a limited area is intensively trawled. Of the total area extensively trawled, much of the ground is trawled infrequently. Further, about one-third of the fishery area is permanently closed to trawling. Of the remaining two-thirds open to trawling, about 60% was not fished in 2001. While the distribution and habitat preferences of many trawl bycatch species remain poorly documented, it seems reasonable to conclude that large non-trawled areas are likely to


Page 62

act as refugia for many of the species captured by trawling. The GBRMPA’s Representative Areas Program will provide additional protection to bycatch species through any additional spatial closures within the GBRWHA. Estimates of total bycatch in the fishery have been derived through research sampling (see Robins and Courtney 1998 for a synopsis). Further research (Courtney et al., DPI currently in progress) is providing information on the catch rates of individual species taken as bycatch. Refinements to the risk assessment process are proposed for bycatch components (e.g. teleosts, crustacea, echinoderms, poriferans and molluscs) by using an approach based on that of Stobutski et al. 1999. This process will determine the relative susceptibility of bycatch species to trawl-related impacts, and their ability to recover from these impacts.

Management Responses 2.1.3 Measures are in place to avoid capture and mortality of bycatch species unless

it is determined that the level of catch is sustainable (except in relation to endangered, threatened or protected species). Steps must be taken to develop suitable technology if none is available.

Management measures based on scientific advice are currently in place or are being implemented, to ensure that the impacts on trawl bycatch species are minimised. Use of bycatch reduction devices has been compulsory under the Trawl Plan since 1st July 2001. Coordinated extension, enforcement and on-going monitoring activities are under way to assess compliance levels within the fishery, and to improve adoption of effective BRD designs. Continued cooperation between management, researchers and industry will be necessary to enable the bycatch reduction target specified under the Trawl Plan to be met. Legislated Measures Bycatch Reduction Target Under the Trawl Plan, the bycatch performance target is met if the amount of bycatch taken in the fishery is reduced by 40% by 1st January 2005 from levels established in previous scientific studies; and the amount of benthos taken in trawl nets is reduced by 25%. These targets were recommended by the Premier’s Working Group on the QECTF after negotiations with the trawl industry and without specific knowledge regarding the levels in impact reduction required to achieve sustainability. However, these targets represent a major challenge for the trawl industry and QFS in managing for impact reduction on bycatch and benthic communities because catch rates of some principal species are shown to decline with use of BRDs in trawling operations (see response to Guideline 2.1.1).


Page 63

Trawl Closures Under the Trawl Plan, 32% of the GBRWHA is now permanently closed to trawling. These closures were implemented as a precaution to address concerns over the sustainability of trawling close to reefs of the GBR. They take into account information from scientific surveys indicating that coral reef fauna are largely discrete from those of the adjacent benthic inter-reefal environments (e.g. Jones and Derbyshire 1988). The large previously trawlable areas covered by these closures and their contiguous nature along almost the entire length of the GBR, provide extensive refugia for a range of species that would have previously been captured and potentially suffered high mortality in trawls (see response to Guideline 2.1.2). There are 40 non-reef bioregions designated within the GBRMP, indicating a high level of regional diversity. Approximately half of these bioregions are represented in areas permanently closed to trawling. It is expected that additional areas will be set aside as “No Take Zones” in the current re-zoning of the GBRMP. Effort Reduction Schedule 2 of the Trawl Plan, contains a review event that is triggered if ‘the number of effort units has not decreased by 13% or more in the first effort year’. The reduction in the first effort year (2001) was 14% (compared to 1996), meeting the performance target for effort reduction under the Trawl Plan. Furthermore, only 83% of available Effort Units were used in 2001. Bycatch Reduction Devices Bycatch Reduction Devices (BRDs) are required in all nets in the ECOTF except for try nets (A try net is a small net used for sampling the abundance of target species). Prior to 1999, BRDs had been used in the trawl fishery on a voluntary basis to reduce the amount of bycatch and to improve the value of catch. On 1st April 1999 the Fisheries Regulation 1995 (the Regulation) was amended to include a three stage introduction of BRDs into the nets used by T1, T2 and T3 licence holders. Nets used for the primary purpose of taking scallops or in the deep water net area were exempt from using BRDs. Stage 1 From 1 May 1999 BRDs would be required in all day time trawls. Stage 2 From 1 January 2000 BRDs would be required for all trawl nets used

within 5 nautical miles of the mainland shore. Stage 3 From 1 January 2001 BRDs would be required in all waters of the Great

Barrier Reef World Heritage Area at all times. On 19th November 1999 the Fisheries (East Coast Trawl) Management Plan 1999 (the Trawl Plan) was introduced replacing the provisions of the Regulation. The new provisions amended the third stage of the introduction of BRDs. The amendment required that from 1st March 2000 a BRD must be fitted to a net in the GBRWHA. On 21st December 2000 the Plan was amended again. The amendment required that from 1st July 2001 a BRD must be fitted to a trawl net used under a T1, T2 or T3 licence unless the net is a try net.


Page 64

Drivers for amendments to the original provisions in the Regulation came from consultation with all stakeholder groups, in particular concerns from the Commonwealth Government about trawling activity within the Great Barrier Reef World Heritage Area. According to the current guideline for construction of a BRD, a BRD is any device fitted to a net, or a modification made to the net, allowing bycatch to escape after being taken in the net (Anon. 2000). The Trawl Plan provides designs for the construction of five types of BRDs that operators may use with a trawl net (Appendix 2: section 5.2). However the guidelines are intentionally broad to allow for continuous improvement and innovation in BRD design. The QFS has examined options for amending the Trawl Plan in regards to the BRD provisions such that the five devices in the Plan would be made compulsory and would be better defined. BRD Compliance Compliance in using BRDs is estimated to be over 90%. BRD/TED offences in 2001 were less than 10% of the offences reported for that year by the QB&FP (Table 7). Adoption of Other Measures Research has recently commenced on the efficacy of hoppers on maximising survival of landed bycatch aboard banana prawn boats. Depending on the success of these trials, the introduction of hoppers under the Trawl Plan may be a useful management tool, especially in the Banana Prawn fishery. Enforcement Inspections for non-permitted species under the Trawl Plan and permitted species which are ‘regulated fish’ under the Fisheries Regulations and the Trawl Plan, are part of the enforcement functions undertaken by the QB&FP. Under s.78 of the Fisheries Act it is an offence to illegally take, disfigure or mutilate a ‘regulated fish’. Undersized saucer scallops and blue swimmer crabs and gravid (berried) bugs are examples of ‘regulated fish’ and their possession is considered a ‘Serious Fisheries Offence’ (SFO) under the Trawl Plan. There are significant penalties for operators convicted of committing a SFO, including possible suspension of the Commercial Fishing Boat Licence under which the offence was committed. The number of recorded fisheries offences in general are considered to be relatively low, given the participation rate in the fishery. Table 7. Recorded Fisheries Offences for the ECOTF, 2001

Number of Convictions

Type of Offence Serious Fisheries Offences Other Offences Total

Closed waters offence 23 16 39

VMS incursion 5 2 7

TEDs/BRDs 0 5 5

Regulated fish offence 1 6 7

Total 29 29 58


Page 65

Note – This data should be treated as indicative only.


Page 66

2.1.4 An indicator group of bycatch species is monitored. Monitoring and Indicator Species At present, no bycatch monitoring is undertaken routinely in the ECOTF. A major research project (DPI-FRDC 2000/170), currently underway and due for completion in December 2003, is assessing species at highest risk from trawling which may also be considered for more detailed long-term monitoring. Selection of indicator species is acknowledged as an issue for consideration by the fishery’s Scientific Advisory Group. 2.1.5 There are decision rules that trigger additional management measures when there are significant perturbations in the indicator species numbers. At present, no specific bycatch monitoring is undertaken in the ECOTF. 2.1.6 The management response, considering uncertainties in the assessment and precautionary management actions, has a high chance of achieving the objective. Evaluation of Management Measures Implementing effort reduction, gear restrictions and the mandatory fitting of BRDs, spatial and temporal closures all positively contribute to reducing fishing pressure on bycatch.

A current objective of the Trawl Plan is to reduce catch levels of non-target species (including by-product species) in the fishery by 40% before 1st January 2005. This objective conforms to a number of the Guiding Principles of the Commonwealth Policy on Fisheries Bycatch (AFFA 2000). The universal adoption of BRDs is likely to see this objective exceeded in some sectors (e. g. the banana prawn fishery), whilst additional measures may be required in other sectors. Achieving an (overall) reduction of 40% will depend on the proportional level of fishing effort expended in each sector, the statistical confidence of the estimates on BRD effectiveness, and the level of compliance achieved. QB&FP surveillance (including VMS) is considered effective in determining the rate of compliance with those fisheries regulations enacted to enhance the sustainability of bycatch species (e.g. observance of closed areas, use of BRDs, etc.). Both fisheries dependent (CFISH logbooks) and independent (long-term monitoring surveys) monitoring are used to assess the rate of bycatch reduction. At present there is limited spatial information on which to base management decisions about preferred habitats / areas of high catches of bycatch species in the major trawl sectors. Further more detailed assessment of bycatch is currently under way in DPI-FRDC Research Project 2000/170. It is expected a report to guide sustainable fishery management of bycatch species will be available by mid-2003. Major spatial closures are in place to protect critical habitats that support the fishery (eg inshore seagrasses) and target species from overfishing. Any additional closures to specifically protect bycatch species would likely be extensions of existing closures. A larger number of smaller areas may be too costly to effectively enforce.


Page 67

Objective 2. The fishery is conducted in a manner that avoids mortality of, or injuries to, endangered, threatened or protected species and avoids or minimises

impacts on threatened ecological communities. Protected Species & Communities

Information Requirements 2.2.1 Reliable information is collected on the interaction with endangered, threatened or protected species and threatened ecological communities. A number of species are protected in Commonwealth waters under the Environmental Protection and Biodiversity Conservation Act 1999 (EPBC Act 1999) and in Queensland waters under the Nature Conservation Act 1992 (NCA 1992). The EPBC Act 1999 contains several provisions for protection of listed species. These provisions include the development of Recovery Plans (listed threatened species and ecological communities only), by the development of wildlife conservation plans and conservation agreements (listed marine and migratory species only) and by recognition of Key Threatening Processes and where appropriate reducing these processes through Threat Abatement Plans. It is an offence to kill, injure, trade, take, keep, or move a listed marine species without a permit, and it is a legal requirement that fishers record captures of these species.

Trawling does not target these species with any interactions incidental to the fishing activity. Management measures and industry Codes of Practice have been implemented to minimise catches.

A 'Species of Conservation Interest' [SOCI] reporting logbook, currently in draft, is proposed for distribution to fishers in the ECOTF with the new OT08 version of the commercial fishing logbook in early 2003. The SOCI reporting logbook is designed to obtain data about species protected under the EPBC Act 1999 (Commonwealth) and the Queensland Nature Conservation Act 1992 that will help QFS monitor interactions with SOCI. It does not abrogate fishers from their legal obligations to report interactions with SOCI during fishing operations to the relevant conservation agency [Environment Australia for interactions in Commonwealth waters or the Environmental Protection Agency for interactions in Queensland waters].

Sea Turtles Species Six species of sea turtles are listed as ‘threatened’ (endangered or vulnerable), ‘migratory’ and ‘marine’ species under the EPBC Act 1999 (listed under Sections 179, 248 and Section 209 respectively) and occur within the fishery area (Table 8). Monitoring Turtle Capture in the Trawl Fishery Voluntary Logbook Program A voluntary logbook program to monitor turtle captures in the QECTF was set up by DPI in 1991 and continued until 1996 (Robins and Mayer 1998).


Page 68

Table 8. Sea turtles that occur in the ECOTF area and their listing status under the EPBC Act 1999

Common Name Scientific Name Listing Status under the EPBC Act 1999

loggerhead turtle Caretta caretta endangered, migratory, marine

olive Ridley turtle Lepidochelys olivacea endangered, migratory, marine

flatback turtle Natator depressus vulnerable, migratory, marine

green turtle Chelonia mydas vulnerable, migratory, marine

hawksbill turtle Eretmochelys imbricata vulnerable, migratory, marine

leatherback turtle Dermochelys coriacea vulnerable, migratory, marine

CFISH Logbook Program Since March 2000, CFISH logbooks have had the provision for recording live and dead turtles of the six species known to occur in waters of the fishery. It is considered that the compulsory use of TEDs has greatly reduced the number of incidental captures of turtles. It is acknowledged there is currently a lack of ongoing fishery-independent assessment of turtle catch and trawl related mortality. However, a risk assessment of turtle capture based on the voluntary logbook data is being undertaken by J. Robins (DPI, AFFS) and is due for completion in late 2002. A proposal for an on-board observer program in the trawl fishery is under consideration. This program would be used to assess the effectiveness of current management measures in minimising capture of protected species, and for verification of fishery dependent data on turtles and other protected species. Syngnathids (Pipefish) Species & Distribution Only Solegnathus hardwickii (pallid pipefish) and S. dunckeri (Duncker’s pipehorse) can be retained as bycatch. No fishery targets pipefish in Queensland waters. S. dunckeri is endemic to eastern Australia, being reported from south of Fraser Island (24°30’S) to central New South Wales (32°12’S) and Lord Howe Island (R. Connolly, Griffith University, pers. comm., 2001; Dawson 1985). S. hardwickii has an extensive distribution in the Indo-West Pacific from southern Japan, the South China Sea to northern Australia. Off the Australian east coast, the species has been reported as far south as the Tweed River in NSW (28°10’S) (Pogonofski et al. 2001). Little information is available on the habitats preferred by syngnathids (Rod Connolly, Griffith University, pers. comm, 2001). Vincent (1996) has reported that fishers believe few pipefish are associated with open sandy seabeds, preferring rocky reef and sponge areas (areas not typically trawled). QFS trawl survey / Long-term Monitoring Program data indicates S. hardwickii is generally associated with the occurrence of sea fans in depths of 26 – 70 m (Eddie Jebreen, QFS, pers comm., 2001). Commercial trawl records indicate pipefish occur in waters to 256 m off the Queensland coast and northern NSW between 12°9’S and 28°15’S.


Page 69

Monitoring Syngnathids Harvest in the Trawl Fishery Provision was first made for recording trawl catches of pipefish in the ‘OT07’ trawl logbook, introduced in early 2000 but only in general use by fishers from July 2000. Previous logbooks did not provide for recording pipefish. There may, however be problems associated with correct identification between similar species in the logbooks. This would require some expertise in taxonomy, and is probably beyond the immediate ability of fishers during the course of normal fishing operations. At present there is no process in place to assess compliance in recording capture of these species on logbooks, or reporting captures to the relevant Commonwealth or State environment agency. A pilot-scale on-board observer program for the fishery is being developed for implementation and assessment by May 2004. The specific intent of the program is the independent validation of syngnathid catch and syngnathid and solenostomid bycatch data from the fishery. In addition, statistically robust estimates of abundance for these species within at least part of the trawl ground will be provided. Sea Snakes Several species of sea snakes, commonly associated with tropical reef habitats off the east coast of Queensland (Heatwole 1987), are a component of bycatch in the ECOTF. Species in the families Hydrophidae and Laticaudidae are listed marine species under the EPBC Act 1999 and cannot be taken in Commonwealth waters without a permit. Incidental sea snake captures are made in the banana prawn and tiger prawn/endeavour prawn sectors and possibly the red spot king prawn and scallop sectors of the ECOTF (Robins and Courtney 1998, DPI LTMP). Monitoring of Sea Snake Harvest in the Trawl Fishery There is currently no provision to record incidental sea snake captures in the QECTF. Their occurrence in the scallop fishery area is monitored in October each year by the DPI LTMP. Discussions with EA have been initiated with the intent of developing a working model for reporting incidental capture of sea snakes. Issues for fishers such as difficulty in identifying species will also be considered.


Page 70

Assessments 2.2.2 There is an assessment of the impact of the fishery on endangered, threatened or protected species. Sea Turtles Based on the results of the voluntary turtle bycatch logbook program from 1991 to 1996, (before the introduction of TEDs), catching a turtle in a trawl net is a relatively infrequent occurrence with overall catch rates averaging less than 1 turtle captured per 20 days trawling (Robins and Mayer 1998). Stratified effort-weighted analysis of turtle catch data from the program, gave an annual estimate of 5,901 turtles caught (all species) in the fishery (95% Confidence Interval 5,199 – 6,604) from an average of 84,876 days fished annually. Estimated annual catches for five of the six turtle species known to occur within the fishery area were found to be highly variable among years (Table 9). The distribution of sea turtle catches reflected major areas of trawling activity. Of the most abundant species: green turtles were commonly caught along the whole east Queensland coast, whilst loggerhead turtles dominated the turtle catch in southern Queensland, and flatback turtles were caught in greatest numbers in more northerly waters. Olive Ridley turtles and hawksbill turtles were caught mainly north of 21º 30’ S and 23º 30’ S respectively. A single leatherback turtle was reported captured off Townsville during the program. More than 90% of all turtles captured were rated as ‘healthy’ when first landed, four percent were reported as comatose and 1% reported dead. Olive Ridley turtles may be more at risk from capture by otter trawlers than other sea turtles because of their relatively small size and their relative frequency of capture in longer than average trawls (Robins & Mayer 1998). Table 9. Estimated average sea turtle catches in the Queensland East Coast Trawl Fishery, 1991-

1996 (Robins & Mayer 1998)

Turtle Species Estimated Average Turtle Captures (1991-96)

95% Confidence Intervals

Percent Turtles Reported Dead or Comatose

loggerhead 2,938 2,390 – 3,487 5

green 1,562 1,223 – 1,902 6

flatback 968 770 – 1,165 4

olive Ridley 323 240 – 406 13

hawksbill 80 42 – 119 9

all species 5,901 5,199 – 6,604 Note: Leatherback sea turtle catches reported in the voluntary logbook

program were too few to enable a statistically robust annual catch estimate to be derived.

A total of 34 turtles (32 landed alive and 2 dead) were reported captured in CFISH logbooks during 2000. The highest incidence of reported turtle catches in a single 30 nm grid was six, in the Claremont Isles area, north of Princess Charlotte Bay (grid


Page 71

D10, between. 10.5 – 11.0º S Lat.). Relatively high capture rates were also reported in other areas adjacent to the ECOTF in the Torres Strait and in Moreton Bay (Figure 11). It is considered that the compulsory use of Turtle Excluder Devices in the fishery since 2001 has greatly reduced the number of incidental turtle captures. In 2001, reported sea turtle captures were reduced to 14 (13 landed live and one dead) (see response to Guideline 2.2.4). Eighty-five percent of reported captures were in far northern GBRWHA waters between approx. 10º 54’ S and 15º 18’ S (Sharp Point to Cape Bedford). The Queensland Environmental Protection Agency monitors nesting turtles along the Queensland Coast and provides annual reports of observed turtle mortality. A serious decline in the number of nesting loggerhead turtles was recorded during the 1980s (Limpus and Reimer 1990). Other Impacts on Sea Turtles Trawling is one of only a number of pressures on turtle populations in Queensland. Other significant pressures include: loss of habitat, feral animal predation on turtle eggs, boat strikes and interactions with marine debris and shark control equipment (Haines et al. 1999). Sea turtles are also harvested by indigenous communities.

Number o f turtles12358

Figure 11. Distribution of turtle captures (all species) in the east coast otter

trawl fishery in 2000.


Page 72

Syngnathids There are two prevalent species of pipefish, Solegnathus hardwickii and S. dunckeri taken incidentally while trawling for prawns and scallops. Smaller species of pipefish and some seahorses are discarded.

The status of syngnathid populations in the area of the Queensland East Coast Trawl Fishery is unknown. From March 2000 to July 2001, 10,597 syngnathids were recorded as incidental captures in the fishery. Captures were made primarily in offshore areas extending from near Cape York to the New South Wales border (Figure 12). Data gathered through the QFS Long-term Monitoring Program, and supported by data obtained from processors (Connolly et al. 2001) indicate that Solegnathus hardwickii and S. dunckeri together make up about 85% of captures.

Preliminary overall catch rates of pipefishes from these data have been reported by Connolly et al. (2001).

Figure 12. Distribution of reported syngnathid catches in the fishery. The shaded squares indicate the percentage of the total catch in numbers of pipefish over the period March 2000 to July 2001 together with the overall trawl fishery effort (in days fished) for the same period (Source: Dunning et al. 2001).


Page 73

Sea Snakes Sea snakes are a component of bycatch in the ECOTF and are taken in shallow (< 20 m) inshore waters fished for banana prawns (Gladstone to Cairns) and for tiger and endeavour prawns (north of Mackay). Four sea snake species have been recorded in the catch (taken by nets without BRDs or TEDs fitted) from these trawl sectors (Table 10). Table 10. Recorded sea snake species captured in the banana and tiger/endeavour prawn trawl

sectors prior to mandatory use of bycatch reduction devices in the ECOTF.

Species Sector(s)

Lepemis hardwickii banana prawn and tiger/endeavour prawn

Hydrophis elegans banana prawn and tiger/endeavour prawn

Disteira major banana prawn

Disteira kingii banana prawn

Source: Robins and Courtney (1998) Sea snake captures were reported predominantly in south–east Queensland, in offshore waters between Hervey Bay and northern Sunshine Coast. Hydrophis elegans, a relatively common species caught in the east coast trawl banana prawn sector and also reported from the tiger / endeavour prawn sector, has a high rate of survival following trawl capture (94% alive after 96 hours post-capture: n = 15 individuals) (Stobutzki et al. 1999). Very limited data indicates that the survival rates for other species commonly caught in the ECOTF may be less. Sea snake mortality is positively correlated with trawl duration. Low mortality rates are associated with the relatively short trawls of the banana prawn fishery (on average 55 ± 28 minutes) (Dredge and Trainor 1994). Prior to 1998, an uncertain number of sea snakes were retained and sold to licensed processors. These licences have lapsed and will not be renewed (GBRMPA 1998). No reference levels have been set for monitoring and managing sea snake catches in the QECTF under the Trawl Plan, as there was at the time of its drafting, an almost total lack of information regarding their status (GBRMPA 1998). Based on the findings of Stobutzki et al. (1999) in the Northern Prawn Fishery (NPF), BRDs and TEDs appear to be very effective at reducing sea snake capture. As BRDs and TEDs have been compulsory in the ECOTF since 2001, catches of sea snakes in the fishery are likely to have been significantly reduced. The current rate of incidental capture of most sea snake species taken in the NPF was investigated by Stobutzki et al. (1999) and was found to be unlikely to threaten the sustainability of any species. Data on sea snake catch and mortality rates in the ECOTF are not available at present.


Page 74

2.2.3 There is an assessment of the impact of the fishery on threatened ecological communities. No threatened ecological communities listed under the EPBC Act 1999 have been identified in the areas fished by the East Coast Otter Trawl Fishery. Trawl closures ensure that trawling can have only a minor impact on seagrass communities occurring within the waters of the ECOTF (see response to Guideline 2.3.2).

Management Responses 2.2.4 There are measures in place to avoid capture and/or mortality of endangered, threatened or protected species. Turtles The Queensland Environmental Protection Agency’s identification of declining numbers of nesting loggerhead turtles during the 1980’s alerted fishery managers to a potential problem with turtle mortalities in trawl nets. With industry involvement, (the then) DPI Fisheries Service developed a ‘Code of Fishing Ethics: The Capture of Marine Turtles’ in 1994 to minimise trawl-related mortality of sea turtles through adoption of effective turtle exclusion devices and handling / release procedures. Slater et al. (1998) undertook a risk assessment for sea turtles in the Queensland ECTF based on:

• the distribution of major breeding and feeding areas of sea turtles;

• CFISH CPUE data from 1991 to 1996 derived from voluntary recording of incidental turtle capture;

• CFISH trawl effort data from 1993 to 1996 at the 6 nm grid scale; and

• data on key population status parameters. Key locations of high risk to sea turtles from trawling were identified and a raft of closures proposed to mitigate impacts of trawling on sea turtles (see also Appendix 2, Section 5.5 Trawl Closures). Closures under the Trawl Plan include:

• complimentary closures by QFS, (e.g. additional areas of permanent closure to trawling in the GBRMP and major northern and southern annual seasonal closures); with GBRMP closures (all zones excluding ‘general use’) and State Marine Parks (e.g. Woongarra Marine Park near Bundaberg); and

• seasonal closures around well defined turtle feeding / mating / nesting locations (e.g. Sandy Cape).

The risk assessment is currently being updated by J. Robins (DPI, AFFS) based on 2001 trawl effort data and will be considered by fishery managers before the end of 2002.

Under provisions of the Trawl Plan, considerable attention has been paid to ensuring detrimental impacts from trawling on sea turtle populations have been minimised throughout the fishery area. Since November 1999, phased-in mandatory use of TEDs


Page 75

in the fishery and revised TED construction guidelines have been significant measures implemented throughout the fishery to help avoid turtle capture-related injury and mortality. Amendments to the Trawl Plan strengthening guidelines for effective TEDs are proposed in the near future.

Syngnathids In August 2001, the QFS initiated a review of permitted species under the Trawl Plan. In response, a strategy has been adopted of limiting incidental catches of syngnathids in addition to the previously introduced elements of the Trawl Plan such as major spatial and temporal closures, significant and ongoing effort reduction and introduction of BRDs). The permitted species list for the ECOTF has been amended so that only the pipehorses Solegnathus dunckeri and S. hardwickii may be taken, and an ‘in possession’ limit of 50 individuals of both species in total has been introduced to prevent any targeting of these species. Gazettal of closed areas and other ‘input controls’ have reduced the area swept by trawlers to less than 50% of 1996 levels (Dunning et al 2001). QFS considers that otter trawling is not focussed on what is believed to be the preferred habitat of the Solegnathus species harvested (slopes along reef margins in strong current regions). Preliminary data reported by Connolly et al. (2001), indicates that the reproductive and growth potential of these species may not be as low as has been generally assumed. Additional research is proposed by DPI into the reproductive biology of these species as an input to future risk assessments. Given that trawl capture mortality is very high for pipefish, QFS is supporting current FRDC-funded research into the use of “hoppers”(water filled holding tanks for bycatch) on trawlers to reduce mortality. The magnitude and distribution of catches of pipefish reported through compulsory logbooks will continue to be monitored by QFS. Should areas of consistently high incidental catch be identified, this will be considered for possible future management changes. More detailed information on syngnathid species composition and abundance in areas monitored through the QFS fishery independent Long Term Monitoring Program will continue to be assessed and made available to fisheries managers. Sea Snakes Based on the findings of Stobutzki et al. (1999) in the Northern Prawn Fishery (NPF), BRDs and TEDs appear to be very effective at reducing sea snake capture. As BRDs and TEDs have been compulsory in the ECOTF since 2001, catches of sea snakes in the fishery are likely to have been significantly reduced. The current rate of incidental capture of most sea snake species taken in the NPF was investigated by Stobutzki et al. (1999) and was found to be unlikely to threaten the sustainability of any species. Data on sea snake catch and mortality rates in the ECOTF are not available at present.


Page 76

2.2.5 There are measures in place to avoid impact on threatened ecological communities.

No threatened ecological communities listed under the EPBC Act 1999 have been identified in the areas fished by the East Coast Otter Trawl Fishery.

2.2.6 The management response, considering uncertainties in the assessment and precautionary management actions, has a high chance of achieving the objective. Evaluation of Management Measures Turtles Through the combined effects of implementing effort reduction, mandatory fitting of TEDs, spatial and temporal closures and gear restrictions (e.g. head rope length), QFS has significantly reduced trawl-related mortality of sea turtles. The ongoing effectiveness of these measures is routinely assessed. Under the Trawl Plan, a reference point has been established to allow the effectiveness of these measures to be monitored. Where annual turtle captures or mortalities exceed the reference point, a review of the management arrangements for minimising turtle bycatch will be triggered under Schedule 2, Part 3 (12) of the Trawl Plan. The reference point has been defined as 5% of the average number of each turtle species taken or killed in the fishery during 1991 and 1992. The reference point relates to the work of Robins (1995) who provided estimates for total turtle catch from the fishery, percentage of actual and potential mortality of turtles (all species) and proportions of the turtle catch attributed to each species from a sample of the QECTF (including Moreton Bay).

In part as a consequence of the success of these measures, QFS is currently initiating discussions with the Scientific Advisory Group to Trawl MAC to assess whether the current reference points remain relevant for ongoing monitoring of trawl-related mortality of sea turtles. Syngnathids Amendments to the Trawl Plan made in January 2002 that pipefish and other syngnathids will remain an incidental part of the catch in some areas and that post-capture mortality for some species and in some areas is high. The QFS considers that major spatial and temporal closures, significant and ongoing effort reduction, introduction of bycatch reduction devices and the recent ‘permitted species’ amendment (only Solegnathus dunckeri and S. hardwickii may be taken and an ‘in possession’ limit of 50 individuals of both species in total) are likely to be adequate measures to effectively ensure that trawling does not threaten the sustainability of syngnathid species occurring in the waters of the ECOTF. Sea Snakes Data from the Northern Prawn Fishery (Gulf of Carpentaria) indicates that the abundance of sea snake species that prefer open (non-reef) habitats e.g. Hydrophis spp. and Disteira spp. has declined significantly since 1989. However, the level of risk to sea snake populations of the four species reported as bycatch in the ECOTF (see response to Guideline 2.2.2) is considered moderate in terms of susceptibility to


Page 77

capture, and low to moderate in terms of a species’ ability to recover in the absence of trawling. A number of management measures implemented under the Trawl Plan are likely to both minimise and mitigate the trawl-capture of sea snakes. These measures include:

• closure of 35% of the GBRWHA to trawling;

• major seasonal closures in the ECOTF that extend over the summer breeding season of most sea snake species (Stobutski et al. 1999);

• the mandatory use of TEDs and BRDs, which reduce sea snake capture rates (Stobutski et al. 1999) throughout the ECOTF;

• other gear restrictions, a cap on fishing effort in the industry at 1996 levels and mechanisms for further effort reduction through licence surrender and transfers, further limit the fishing effort and hence the total trawl-capture of sea snakes.

As trawlers avoid coral reefs, it can be assumed that reef-associated sea snake species are less likely to be captured in significant numbers in the fishery. Whilst the desirability of gaining further capture / mortality data is acknowledged, QFS considers that current management measures in the ECOTF are sufficiently precautionary to make it unlikely that the sustainability of species of sea snake occurring within the waters of the ECOTF is threatened.


Page 78

Objective 3. The fishery is conducted, in a manner that minimises the impact of fishing operations on the ecosystem generally.

Ecosystem Impacts

Information Requirements 2.3.1 Information appropriate for the analysis in 2.3.2 is collated and/or collected covering the fisheries impact on the ecosystem and environment generally. Trawling can impact upon the sea bed and associated biotic communities (Hutchings 1990). However, the level of impact is related to the characteristics of gear used, and the frequency with which trawling occurs over the same ground (Figure 13). The resilience of species to removal by trawling and the degree to which species are aggregated across the sea bed are also important factors in determining long-term impacts (Pitcher et al. 2000). The spatial extent and intensity of trawling have been used as a proxy measure of the impact of trawling (Poiner et al. 1998). Information Sources Trawl Logbooks Prior to 2001, the CFISH logbook facilitated the reporting of fishing activity within 30 minute grids of latitude and longitude. The highly aggregated nature of trawling meant that this data was unable to support a detailed spatial assessment of trawl effort. From 2001 onwards, fishers have been required to report in 6 minute grids. This has enabled more detailed spatial analysis and the discrimination of effort between inter-reef areas adjacent to individual reefs and shoals and habitats within the GBR lagoon. Some fishers provide a further degree of detail by reporting their position using latitude and longitude. With the advent of VMS, even finer scale trawl data are being collected. Currently VMS data are mainly used for enforcement purposes and to monitor effort unit expenditure against the effort cap within the fishery area and the GBRWHA. It is expected that VMS data will also support future requirements for monitoring (and managing) effort in key bioregions of the GBRWHA and in highly productive areas critical to the long-term viability of the fishery. Long-term Monitoring Surveys Since 2000, fishery independent surveys of tiger and endeavour prawns and scallops have been conducted annually in waters inshore of the northern GBR and adjacent to the southern end of the GBR respectively. Surveys are limited in spatial extent to locations adjacent to the main fishing grounds (tiger and endeavour prawns) adjacent to temporal closure areas within the fishing ground (scallops). These surveys are primarily for the purpose of obtaining data to detect long-term fluctuations in recruitment patterns for these species (see response to Guideline 1.1.1). However, data are also collected on associated demersal communities, including megabenthos. Information will be available on the specific make up of fauna before the end of 2002.


Page 79

Figure 13. Trawl effort in the East Coast Trawl Fishery from March 2000 to July 2001.

(Source: Dunning et al. 2001). Representative Areas Program (RAP) The GBRMPA is currently developing a ‘Representative Areas Program’ (RAP) through which areas of high biodiversity can be identified and protected. In addition to the highly protected “Green Zones” already in place in the GBRMP, it is understood that a further 25% of the GBRWHA may be given similar status and permanently closed to all forms of fishing. The locations of proposed highly protected area boundaries are not currently available, but will take into account spatial patterns of fishing effort from trawl logbooks and VMS. Scientific Assessments The ecological impacts of trawling within the ECOTF area were first studied in detail by Sainsbury and Poiner (1989). A more detailed and far-reaching assessment of the effects of trawling on benthic communities in the Far Northern Section of the GBRMP was completed in the ‘Green Zone Project’ (Poiner et al. 1998).


Page 80

The Green Zone Project involved a number of linked studies to determine the environmental impact of otter trawling on susceptible biota, and comprised:

• a survey of seabed and associated communities;

• trawl sampling of demersal communities in areas open and closed to trawling;

• a BACI-style experiment to describe changes in benthic community structure directly attributable to trawling;

• a depletion experiment of repeated trawling over the same ground to assess the cumulative impact of trawling on sessile epibenthos; and

• an assessment of indirect ecological impacts of discarding trawl bycatch on seabird populations in and adjacent to the study area.

The impact of trawling in the GBRMP on trophic pathways has been considered by Gribble (2000) and ecosystem dynamics modelled for varying levels of fishing mortality of discarded bycatch. Spatial models predicting the probability of seagrass occurrence are being developed by QFS (Coles et al., DPI and Reef CRC unpublished) (Figure 14). A large proportion of the shallow seagrass beds in the ECOTF area are closed to trawling. The distribution of deepwater seagrass and algal beds in the Far Northern Section of the GBRMP, and the impacts of trawling on these communities are currently being assessed by QFS.

144 146 148 150 152

-24

-22

-20

-18

-16

-14

-12

Longitude

Latit

ude

••••••••••••••••••••

••••• ••••

••••••••

••••••••••

••• •••••••••••

•••• ••••

•••••••

•••• •• ••••• ••

••••••••••• ••

••••••••••

•

•••

•••

•••

•

• ••

•••••

••••

••••

••

•• • • •

•• • • ••••••••••••• ••

••••••• •• •

••

••••••

•••••••••••••• •••• ••••••

• •• •••• •••••••

•••••••

•••••••••••

••••••••••••••••••••••••

••••••••• ••

••

• • • ••••

•••••••••••• • •••

••••••••••••••••••••••

•••••••

•••••••••••••••••••••••••••••••••••••••••••••••••

•••••••••

•••••••••••••••••••••••

• •••••••

•••

••••••••••••••

•••••••••

•••••••••

• •

••••••••••••••

•••••••

•••••••••••

••••••••

••••••••••• •

••••

••••••••••••

••••••

•••••••• ••••••

••••••• •• •• •• ••••

•••

•••••••••••••••••••••••••••••••

•••

••••

••

••••••••••••••

•••••

•

••••••••

• ••• • • •

•• ••••

•

•

•••••

••

• •••

•••

•

•••

• ••

•••••••••

•••••••••••••• ••••••••••

•••••• ••••••••••

••••••••••••••• •••

••• •••••••

•••••••••••••••••• •••••••••••••••••••••••••

••••••••

••••••••

••••••••••••••••••••••••

•••••••••••

••••••• •••••••••••••••••••••••••••• •••••••••

••••

•••••••••••

••••••

••••••••••

••••• •• ••••••• ••••

••

•••• •••• •

•

• ••

••••

•• •

•••••••••

•••

••••••••

•••••••

•

••••••••••••••••••••••

••••••••

•

•• • ••

••

•••

•

•••

• • • •••

••••••••

• • • •••••• • ••••

•••••••••• ••••• ••••••••

•••• ••

•

••••••••••• •••

••••••••••••

••••••••••••••

••••••••••••••••••••••••

••••••••••••••

••••••

••••••••• •••••••• ••••

••••• •••••

•••••••

•••

•• • • •

•

••••

• • •• ••

•••••••••••

••••

••• ••

• •••••••••••••••

••

••••••••••

•••••••••••••••••

•••••

•••

••••••••

•

••• ••• ••

••••••••••••••••••••• •••••••

•••• •••••••

••••••••••••• ••••••••••••••

•••••••••••••••• •• •••

•••

Princess Charlotte Bay

Cairns

Mackay

Cooktown

0.0

0.2

0.4

0.6

Figure 14. Seagrass probability of occurrence in the GBRWHA. The survey and mapping of inter-reefal seabed biodiversity throughout the entire GBR is proposed to support the review of the performance of marine representative areas


Page 81

within the GBRWHA, and the evaluation of the environmental benefits of alternate management strategies for trawling (R. Pitcher, CSIRO, pers. comm.).

Assessment 2.3.2 Information is collected and a risk analysis, appropriate to the scale of the fishery and its potential impacts, is conducted into the susceptibility of each of the following ecosystem components to the fishery. Impacts on Ecological Communities Demersal Communities Otter trawling is most commonly undertaken in areas of relatively soft sand or mud. Rough hard substrates (rocks or coral) are unsuitable for otter trawling, and are usually avoided to minimise damage or loss of fishing gear, and for safety reasons. Trawling in the GBR region is predominantly over the softer sediments within the GBR lagoon lying between the Queensland coast and the western margin of the mid-shelf reef complex (GBRMPA 1998). Major commercial species, including tiger prawns, endeavour prawns and saucer scallops inhabit these waters, while habitats between the reefs and shoals are fished for red spot king prawns and coral prawns. While the majority of trawling in the ECOTF is over soft, relatively flat substrates, the composition of benthic communities in these areas is not well documented and has received scant attention by scientists in the past (Poiner et al. 1998, GBRMPA 1998). In characterising tropical inter-reef areas, Hutchings (1990) mentions a number of epibenthic habitats recorded from the GBR region, which may be subject to trawling. These include seagrass beds, algal (Halimeda) beds and patches of seabed structure made up of invertebrate assemblages. Assemblages of epibenthic invertebrates are a significant element of the lagoon and inter-reef shoal habitats in lightly or un-trawled areas of the Far Northern Section of the GBR (Poiner et al. 1998). These assemblages are made up of a range of large sessile invertebrates (mainly sponges, gorgonians and soft and hard corals) supporting smaller invertebrates and fishes, and occur on patches of hard substrate raised slightly above the softer sediments of the surrounding seabed. There may be similar epibenthic communities elsewhere within the GBR region. Trawling over bare, flat substrate is likely to have less of an impact than trawling over more undulating substrate and / or substrate supporting megabenthos. Trawling targeted at species sheltering within assemblages dominated by sponges or corals is likely to substantially impact those assemblages, and may be associated with significant species shifts in site-associated fish species (Sainsbury et al. 1993). Research on the impacts of trawling on benthic assemblages inside the extensive area closed to fishing in the Far Northern Section of the GBRMP (Green Zone) indicates that in a previously un-trawled or lightly trawled area each pass of a trawl net removes about 10% of the available living material (sessile and mobile benthos and fish) susceptible to removal by prawn trawling. At low trawl frequency, such impacts are relatively minor and may be effectively undetectable, but the cumulative impacts of frequent trawls over the same ground may be substantial (Pitcher et al. 1997). Areas


Page 82

subject to a high intensity of trawling over several decades are likely to be significantly and irreversibly altered (Poiner et al. 1998). In the Far Northern GBR there are few significant differences in species abundance between the areas open and closed to trawling. However, natural variation is very high and may mask the impacts of trawling. Sponges taken from areas closed to trawling were on average larger than those taken from areas open to trawling. Pitcher et al. 2000 used ecosystem modelling to estimate the rates of population recovery of sessile megazoobenthos in the GBR. Four rates of population recovery were used, ranging from slow recovery (up to 15 years, for species such as large sponges) to fast recovery (1-3 years, for molluscs, crustaceans, annelids and echinoderms). It was estimated that after trawling which resulted in a 10% removal of benthic fauna (similar to one trawl over an area), populations could take between 1 – 10 years to recover, depending on their recovery rates. Recovery from a 50% removal could take between 2 and 20 years; whereas a 90% removal (approximately 13 trawls) could take benthic populations from 7 to over 20 years to recover. Additional modelling incorporated a recovery potential, and level of resilience of different faunal types. If the fauna had no capacity to recover, repeated trawling would result in a disappearance from the area. Fortunately most species have some capacity to recover. Never the less, high effort levels are likely to result in the disappearance of vulnerable fauna types (Pitcher et al. 2000). This modelling suggests that cumulative impacts of trawling in the GBR over the last 20 years include a significant depletion of fauna types that are easy to remove and/or slow to recover and an alteration of the faunal composition towards dominance of less vulnerable species (Pitcher et al. 2000). Seagrasses Fishing closures and GBRMP Zoning effectively protect a large proportion of the Queensland east coast’s shallow water seagrass meadows from trawl-related impacts. Infrequent trawling over seagrass meadows may have minimal long-term impact (Pitcher 1997) (see response to Guideline 2.2.3). Ecologically Related, Associated or Dependent Species Research on the fate of discards in the CSIRO-DPI "Green Zone Report", indicates three major scavenger groups consume discards from trawling in the Far Northern Region of the GBRMP - sea birds, dolphins and sharks, and small fish and invertebrates. Compulsory use of BRDs in the fishery is likely to increase the incidence of escape of swimming animals from trawl nets. It is likely that BRDs lead to reduced quantities of bycatch discarded from trawlers and provisioned by scavenging fauna. Dependent on their design and how they are deployed, BRDs may be relatively ineffective in avoiding capture of sessile invertebrates which are made available to scavengers as discards.


Page 83

Sea Birds Crested terns, lesser frigatebirds, greater frigatebirds and brown boobies were found to be common day -time scavengers in the northern GBR (Hill & Wassenberg 2000; Poiner et al. 1998). Outside of the trawling season, these species primarily consume pelagic fish species. Trawl discards may contribute significantly to their diet during the trawl season, accounting for more than 40% of the diet of crested terns; 15% of the diet of lesser frigatebirds and 5% of the diet of brown boobies (Blaber et al. 1995 cited in Hill & Wassenberg 2000). Even though only a small proportion (14%) of trawl discards are available to scavenging sea birds (Hill & Wassenberg 2000), discards comprise an significant seasonal component of the diet of crested terns and lesser frigatebirds. Other species of sea bird may be passive discard feeders, and may take advantage of floating bycatch some distance from the original location of discard. Floating bycatch may be available for six hours after discarding (Poiner et al. 1998). These discards do not normally comprise a significant proportion of their diet. Population sizes of crested terns in the Far Northern Section of the GBRMP have markedly increased since the 1970s, with estimates during the 1990s approximately ten fold higher (from under 100 birds to 1000 birds) in the Green Zone and Lizard Island region (Poiner et al. 1998). This is the only species recorded by Poiner et al. (1998) to have undergone a significant population increase. Crested terns breed later than most other species, and fledglings may benefit from trawl discards during March. This may result in lower mortality rates, and conditioning to consuming trawl discards (Poiner et al. 1998). Populations of the lesser crested tern, caspian tern and sooty tern have decreased in some parts of the region over the last decades. Populations of other sea bird species, including the lesser and greater frigatebird and brown booby, have fluctuated in size, however there are no clear population trends (Poiner et al. 1998). Availability of discards has resulted in a greater prey species overlap of sea birds, and has altered some species’ feeding strategies (such as the brown booby). Reduced effort and full BRD use in the fishery will mean fewer floating discards. Modelling has indicated that a decline in discards will result in a reduction in the number of sea birds that feed on them (Gribble 2000). Species, such as crested terns, that have artificially high populations as a result of the increased supply of prey from trawl discards, will be most at risk of starvation. Dolphins and Sharks Data on the effects of trawling on dolphins and sharks in the ECOTF indicate that sharks and dolphins are occasional scavengers of floating trawl discards in the far northern GBR lagoon (Hill et al. 1998). Their observed percentage occurrence feeding on discards was much lower than that of the three most common seabird species and differed by an order of magnitude. The foraging movements of dolphins and sharks indicate they may be drawn by discarding to areas of high intensity trawling, but in areas where trawling effort is low there may be no measurable impact to their populations (Hill et al. 1998).


Page 84

Small benthic fish and invertebrates Results from research in the Far Northern Section of the Great Barrier Reef indicate that due to their often extensive distributions but limited foraging movements, the impact of discards from trawlers on small benthic fish and invertebrate populations is likely to be minor and localised to areas of regular trawling (Hill et al. 1998). Sea Snakes Trawling activities that potentially disturb benthic communities may significantly impact on sea snakes that specialise on benthic prey (Stobutzki et al. 1999). Sea snakes may also be captured in nets (see response to Guideline 2.2.2). Water Column Communities The ECOTF targets a range of demersal species: little if any direct impact to communities of the overlaying water column are likely. Trawl discards are likely to artificially boost population numbers of predators such as groupers, rays and sharks. A reduction in trawl effort is likely to result in reduced biomass within these groups (Gribble 2001). Impacts on Food Chains Structure and Productivity/Flows Transient and long term effects of prawn trawling in the Green Zone of the GBRMP, and the effects of a 50% decrease in effort through a reduction of 5% per year have been modelled in an ecosystem model (Gribble 2001). This study found that prawn species were not severely impacted by trawling, as they were advantaged by the removal of predators and competitors in the form of bycatch. In addition there was an increase in food from discards or an increase in prey species that feed on discards. A reduction in bycatch may therefore result in a reduction of biomass of target prawn species such as endeavour and tiger prawns. The incorporation of BRDs may consequently result in a cost to the industry, proportional to the reduction in bycatch. Trawling has a negative impact on the biomass of omnivorous fish and sea turtles. Models that incorporated a 50% reduction of current trawling levels showed an increase in the biomass of bycatch species (such as omnivorous fish), and a decrease in predators that feed on bycatch. Biomass of turtles showed a dramatic increase, even though they were only a small component of the bycatch. This highlights the need to incorporate the use of TEDs in trawl gear (Gribble 2001). TEDs are compulsory for all trawl nets excluding try nets in the fishery (see response to Guideline 2.2.4). Impacts on the Physical Environment Physical Habitat and Water Quality Direct physical impacts on the seabed include re-suspension of sediment and increased turbidity (Churchill 1989) and mechanical mixing and reworking of sediments (Harris 1995). Impacts such as these are likely to be low in areas permanently closed to trawling. Surveillance by QFS, QB&FP, Queensland Parks and Wildlife Service and Coast Watch ensures that these closures are enforced and that associated impacts are minimal. Trawl-associated impacts have largely been removed by closure to trawling of one-third of the total fishery area including trawl closures totalling one-half of the area of the GBRMP (Table 11).


Page 85

In areas open to trawling, trawl impacts are likely to be more evident in relatively small areas that are regularly trawled. For example only 3% of the total area available to trawling, and 2% of the area available to trawling in the GBRMP received more than 200 boat days of trawling in 2001 (Table 11). There are large areas receiving very little disturbance from trawling. Around sixty percent of both the total fishery area available to trawling and the area within the GBRMP available to trawling received less than 21 boat days in 2001 (Table 11). Table 11. Areas trawled in the ECOTF in 2001.

Total Fishery GBRMP Area (km2) % Area

(km2) %

Total Area of Fishery 546267 100 345848 100Total Area of Permanent Closures 176133 32 173904 50 Total Area available to be fished 370134 68 171944 50 Area Fished 143110 26 106519 31 Area Not Fished 227023 42 65425 19 Area of Major Seasonal Closures 312654 57 255798 74 Area fished less than 21 boat days per year 89451 63 67942 64 Area fished between 21 and 99 boat days per year 39343 27 29734 28 Area fished between 100 and 199 boat days per year 9710 7 6841 6 Area fished more than 200 boat days per year 4607 3 2003 2 Total 143110 100 106519 100

Management Responses 2.3.3 Management actions are in place to ensure significant damage to ecosystems does not arise from the impacts described in 2.3.1. Minimisation and Mitigation of impacts Benthic Fauna Minimisation and mitigation of impacts on benthos are being addressed in the Trawl Plan through management of fishing effort (including closures) and the ongoing monitoring of the performance of these measures. The Trawl Plan requires that between 19 November 1999 (when the Plan came into force) and 1 January 2005, impacts of trawling on benthos will be reduced by 25% [Schedule 2 Part 3, n12(1)(a) of the Plan]. Failure to meet this target will trigger a review. QFS has adopted a conservative approach to the management of fishing pressure in sensitive areas to help prevent irreversible loss of benthic biodiversity. A significant reduction in the extent of direct impacts on the physical environment, habitat, and benthic floral and faunal communities has been achieved, principally through a reduction of the area (and in particular areas supporting seagrass meadows)


Page 86

that may be trawled. Further areas closed to fishing are planned under the GBRMPA’s Representative Areas Program. The Trawl Plan includes the following major initiatives for conservatively managing trawl-related impacts on benthic fauna within the ECTF area:

• capping fishing effort at the 1996 level less 5% (102, 929 days), effectively removing 15% of fishing effort from the fishery;

• gear modifications including Bycatch Reduction Devices and maximum size restrictions applying to the thickness of ground chain and tickler chains on inshore and deepwater trawl nets;

• analysis of spatial patterns of fishing effort prior to and subsequent to permanent and seasonal closures. Currently around 32% of the fishery area and 50% of the GBRWHA are permanently closed to trawling, and 57% and 74% respectively are seasonally closed;

• identification and additional protection of high effort / high catch areas and least-impacted sensitive areas with a relatively high proportion of species with low resilience to trawl disturbance and low recovery capacity (recognises the work of Pitcher et al. 2000 in assessing the status of benthic communities subject to differential trawling pressures in the GBRWHA); and

• availability of fine scale effort data for modelling spatial management scenarios with minimal negative impact on sustainable fishery production (e.g. 6’ grid CFISH data and VMS data).

Seagrass Most of the shallow water seagrass habitat within the GBRMP and inshore areas south to the NSW border are protected from potential disturbance by trawling through a combination of GBRMP protective zoning and QFS inshore fishing closures. In shallow coastal waters of the GBRWHA (<10 m deep), the areas with highest probability of seagrass occurrence coincide with areas permanently closed to trawling. Deepwater seagrasses have full protection within GBRMP protected zones and are subject to lower trawling effort and associated impacts during the major trawl closure in summer through autumn. 2.3.4 There are decision rules that trigger further management responses when monitoring detects impacts on selected ecosystem indicators beyond a predetermined level, or where action is indicated by application of the precautionary approach. Under Schedule 2, Part 3 of the Trawl Plan:

• the results of a scientific study to be undertaken before 1st January 2005 and accepted by the Chief Executive, will be used to assess the level of reduction of benthic impact compared to a pre-November 1999 baseline; and

• if a 25% reduction in impact on benthos is not achieved by 1 January 2005, a review event will be triggered.

Terms of Reference for the review would be formalised by QFS trawl managers in consultation with the fishery Scientific Advisory Committee. Terms of Reference may require a formal ecological risk assessment of a range of management options to


Page 87

further reduce impacts on benthic habitat types, including further effort reduction, closures and trawl gear design modifications. 2.3.5 The management response, considering uncertainties in the assessment and precautionary management actions, has a high chance of achieving the objective. QFS has sought to minimise the impacts of the fishery on the ecosystem through mandatory gear restrictions (including fitting of BRDs), spatial and temporal closures and effort reduction. The otter trawl gear used in the fishery has a relatively minor impact from a single pass over the seabed, but repeated passes over the same ground have a cumulative impact. Under the Trawl Plan, precautions have been taken to further reduce physical impact on benthic structures through gear modification. The thickness of ground chain and tickler chain links used in trawl nets has been reduced and the number of chains that can be set in front of a net has been restricted to one. No weights can be fixed to the chain. Some seabird populations (e.g. crested terns) have increased as a consequence of the availability of floating discarded bycatch from trawlers, whilst others have not (Poiner et al. 1998). Based on available evidence, the risk of major ecological impacts upon seabird, shark, dolphin and benthic fish and invertebrate populations from discard provisioning appears to be low, particularly in view of lower bycatch rates due to the widespread adoption of BRDs in the fishery. QFS considers the level of protection afforded seagrass habitats to be adequate. There are legislative provisions to protect extensive inshore seagrass areas through closures under the Trawl Plan and through GBRMP protective zoning. Further a number of deeper water species of seagrass are resilient to trawling at low to moderate levels (Rob Coles, QFS Northern Fisheries Centre, pers. comm.). Consequently, trawling in the ECOTF at current and foreseeable levels is unlikely to threaten the sustainability of seagrasses. Throughout the history of management in the ECOTF, the area of permanent closure to trawling has shown a significant increase. Under Schedule 3 of the Trawl Plan, there are provisions for the specific permanently and seasonally closed areas to remain in place until the Plan expires in 2010 or until there is an earlier amendment to the Plan. Electronic vessel monitoring (VMS) and improved spatial resolution in logbook records are now both required by law for vessels operating in the ECOTF. This data can be used to confirm individual fishing unit's compliance with closures in near real time (ie. vessel positions are polled every 2 hours). A further increase in the area of permanently closed waters (and associated reduction in the extent of trawled area within the GBRWHA) may occur within the next 3 years. This will be a consequence of additional Highly Protected Areas being declared under GBRMPA's Representative Areas Program to protect biodiversity. QFS is working with GBRMPA to ensure that appropriate levels of protection are afforded to areas that are open and closed to trawling. Based on the work of Poiner et al (1998) and Pitcher et al (2000), areas subject to high levels of fishing effort over decadal time scales are already assumed to be in a highly


Page 88

modified state. When areas are closed to trawling, and no commensurate reduction in effort is enforced, there will be displacement of effort into alternate areas that remain open to trawling. Increased disturbance in the recipient areas due to the higher intensity of trawling will be inevitable. In consultation with conservation agencies, designation of areas critical to the sustainability of the fishery and areas of major significance to biodiversity conservation is needed for effective management of future effort displacement in the fishery. While substantial reduction of trawl effort has been achieved under the Trawl Plan, analysis of time series of the distribution of fishing effort in the ECOTF and displacement of fishing activity from closed areas is required to evaluate progress toward the sustainability target set under the Trawl Plan (ie. a 25% reduction in impact on benthos).


Page 89


Page 90

References AFFA. 1999. National Policy on Fisheries Bycatch, Commonwealth Government.

Canberra.

Anon. 1991. East Coast Trawl Fishery Situation Paper, September 1991. Queensland Fish Management Authority. 28 pp.

Anon. 1994. QFISH. The Qld Fisheries Information System. Catch and Effort Sub-System Retrieval Users Manual. Version 1.3. February 1994. 33 pp.

Anon. 1996. Discussion Paper No.5. Queensland Trawl Fishery. Queensland Fish Management Authority. 100 pp.

Anon. 1998. Queensland Trawl Fishery. Proposed Management Arrangements (East Coast – Moreton Bay) 1998-2005. Queensland Fish Management Authority. 40pp.

Anon. 2000. Overview of the Fisheries (East Coast Trawl) Amendment Management Plan 2000 and Other Matters. Queensland Fisheries Service, Department of Primary Industries. 21 pp.

Beumer, J. & Couchman, D. 2002. For the Management and Protection of Martine Plants. Departmental Assessment Procedures and Policy Position. Fish Habitat Management Operational Policy 001 (2002). Department of Primary Industries. Queensland Government, Brisbane. 36 pp.

Cannon, L. R. G., Goeden, G. B., and Campbell, P. 1987. Patterns of community zonation in Great Barrier Reef waters. Memoirs of the Queensland Museum 25: 45-70.

Churchill, J. H. 1989. The effect of commercial trawling on sediment resuspension and transport over the Middle Atlantic Bight continental shelf. Continental Shelf Research. 9: 841-864.

Connolly, R. M., Cronin, E. R. & Thomas, B. E. 2001. Trawl bycatch of syngnathids in Queensland: catch rates, distribution and population biology of Solegnathus pipehorses (seadragons). Project No. 1999/124 Report to Fisheries Research and Development Corporation. Griffith University, Gold Coast. 57 pp.

Courtney, A. J. (2002). The status of Queensland’s Moreton Bay Bug (Thenus spp.) and Balmain Bug (Ibacus spp.) stocks. Department of Primary Industries, Information Series QI02100. 18 pp.


Page 91

Courtney, A. J., Cosgrove, M. J. & Vance, D. J. 2002. Developing indicators of recruitment and effective spawner stock levels in eastern king prawns (Penaeus plebejus). FRDC Project No. 97/145 Draft Report.

Dichmont, C. M., Haddon, M., Yeomans,K. & Kelly, K., Eds. 1999. Proceedings of the South East Qld Stock Assessment Review Workshop, 16-28 August 1998. Department of Primary Industries, 179 pp.

Dredge, M. C. L. 1990. Movement, growth and natural mortality of the red spot king prawn, Penaeus longistylus Kubo, for the Great Barrier Reef lagoon. Australian journal of Marine and Freshwater Research, 41: 399-410.

Dredge, M. C. L. & Trainor, N. 1994. The potential for interaction between trawling and turtles in the Qld east coast trawl fishery. In Proc. Aust. Mar. Turt. Works., ed. R. James. Australian Nature Conservation Agency. pp. 136-41.

Dredge, M. C. L. 1985. Growth and mortality in an islolated bed of saucer scallops,

Amusium japonicum balloti (Bernardi). Queensland Journal of Agricultural and Animal Science. 42(1):11-21.

Dunning, M., Lightowler, M. & Jones, P. 2001. Syngnathid (pipefish) harvest from

the Qld East Coast Trawl Fishery. Draft Statement of Management Arrangements. QFS, QDPI. 18 pp.

GBRMPA 1998. State of the Great Barrier Reef World Heritage Area 1998. Eds. D. Wachenfeld, J. Oliver & J. I. Morrissey. GBRMPA.

Glaister, J. P., Pond, P. C. & Storey, J. L. 1993. Framework for Management for the East Coast Trawl Fishery. Queensland Fish Management Authority. 48 pp.

Gribble, N. A. 2001. A Model of the Ecosystem, and Associated Penaeid Prawn Community in the Far Northern Great Barrier Reef. In Oceanographic Processes of Coral Reefs. Physical and Biological Links in the Great Barrier Reef. E. Wolanski, Ed. CRC Press, Boca Raton, Florida, USA.

Haines, J. A., Limpus, C. J. & Flakus, S. 1999. Marine Wildlife Stranding and Mortality Database Annual Report, 1999. III. Marine Turtles. Queensland Parks and Wildlife Service. 32 pp.

Harris, P. T. 1995. Marine geology and sedimentology of the Australian continental shelf. In “State of the Marine Environment Report for Australia, Technical Annex 1: The Marine Environment. L. P. Zann and P. Kailola, Eds. Department of the Environment, Sport and Territories, Canberra.

Heatwole, H. 1987. Sea Snakes. New South Wales University Press. 85 p.


Page 92

Higgs, J. 1999. Experimental recreational catch estimates for Queensland residents. RFISH Technical Report No.2, results of the 1997 diary round. QFMA, 55 pp.

Higgs, J. 2001. Recreational Catch Estimates for Queensland Residents. RFISH Technical Report #3, Results from the 1999 Diary Round. Queensland Fisheries Service, Department of Primary Industries. 62 pp.

Hill, B., Blaber, S., Wassenberg, T. and Milton, D. 1998. Composition and Fate of Discards. In Poiner, I., Glaister, J., Pitcher, R., Burridge, C., Wassenberg, T., Gribble, N., Hill, B., Blaber, S., Milton, D., Brewer, D. & Ellis, N. 1998. The Environmental Effects of Prawn Trawling in the Far Northern Section of the Great Barrier Reef Marine Park: 1991-1996. CSIRO Division of Marine Research, Cleveland.

Hill, B. J. & Wassenberg, T. J. 2000. The probable fate of discards from prawn

trawlers fishing near coral reefs. Fisheries Research. 48:(3) 277-286.

Hundloe, T. 1985. Fisheries of the Great Barrier Reef. GBRMPA Special Publication Series (2). Brisbane, Queensland. 158 pp.

Hutchings, P. 1990. Review of the Effects of trawling on Macrobenthic Epifaunal Communities. Australian Journal of Marine and Freshwater Research. 41:(1)111-120.

Hyland, S. J., Courtney, A. J. and Butler, C. T. (1989). Distribution of seagrass in the Moreton Region from Coolangatta to Noosa. Queensland Department of Primary Industries Information Series QI89010, 42 pp.

IUCN. 2002. The 2000 IUCN Red List of Threatened Species – Introduction. http://www.redlist.org/info/introduction.html. 8 August 2002.

Jones, C. M. & Derbyshire, K. 1988. Sampling the demersal fauna from a commercial penaeid prawn fishery off the central Queensland coast. Memoirs of the Queensland Museum. 25: 403-15.

Kailola, P. J., Williams, M. J., Stewart, P. C. Reichelt, R. E., McNee, A. & Grieve, C. 1993. Australian Fisheries Resources. Bureau of Resource Sciences, Department of Primary Industries and Energy and the Fisheries Research and Development Corporation, Canberra. 422 pp.

Kirkwood, G. P. and Somers, I. F. 1984. Growth of two species of tiger prawn, Penaeus esculentus and P. semisulcatus, in the western Gulf of Carpentaria, Australian Journal of Marine and Freshwater Research. 35: 703-712.

Lee Long, W. J. and Coles, R. G. (1997). Status of seagrassess in the Great Barrier

Reef region. In State of the Great Barrier reef World Heritage Area


Page 93

Workshop, 1995’. (Eds. D. Wachenfeld, J. Oliver and K. Davis) pp. 185-93. GBRMPA, Townsville.

Limpus, C. J. & Reimer, D. 1994. The loggerhead turtle, Caretta caretta, in

Queensland: a population in decline. In: R. James, Ed, Proceedings of the Australian Marine Turtle Conservation Workshop. Australian Nature Conservation Agency, Canberra, 39-59.

Lucas, C. 1974. Preliminary estimates of stocks of the king prawn, Penaeus plebejus, in South-East Queensland. Australian Journal of Marine and Freshwater Research. 5:35-47.

Lucas, C., Kirkwood, G. and Somers, I. M. 1979. An assessment of he stocks of banana prawns Penaeus merguiensis in the Gulf of Carpentaria. Australian journal of Marine and Freshwater Reseacrch. 30:(5) 639-652.

McKenzie, L. J., Roder, C. A., Roelofs, A. J., and Lee Long, W. J. 2000. Post-flood

monitoring of seagrasses in Hervey Bay and the Great Sandy Strait, 1999: Implications for dugong, turtle & fisheries management. DPI Information Series QI00059 (DPI Cairns), 46pp.

Pitcher, C. R., Poiner, I.R., Hill, B. J. & Burridge, C. Y. 2000. Implications of the effects of trawling on sessile megazoobenthos on a tropical shelf in northeastern Australia. ICES Journal of Marine Science. 57:1359-1368.

Pitcher. C. R., Burridge, C. Y., Wassenberg, T. J. & Poiner, I. R. 1997. The effects of prawn trawling on the Great Barrier Reef seabed habitats. In ‘The Great Barrier Reef, science, use and management: a national conference: Proceedings Volume 1’. Great Barrier Reef Marine Park Authority, Townsville. pp. 107-23.

Pogonofski, J .J., Pollard, D. A. & Paxton, J. R. (in press, 2001) Conservation overview and action plan for Australian threatened and potentially threatened marine and estuarine fishes. Report to Natural Heritage Division of Environment Australia.

Poiner, I., Glaister, J., Pitcher, R., Burridge, C., Wassenberg, T., Gribble, N., Hill, B., Blaber, S., Milton, D., Brewer, D. & Ellis, N. 1998. The Environmental Effects of Prawn Trawling in the Far Northern Section of the Great Barrier Reef Marine Park: 1991-1996. CSIRO Division of Marine Research, Cleveland.

QFS 2000. Regulatory Impact Statement and Draft Amendments to the Fisheries (East Coast Trawl) Management Plan 1999, October 2000. Queensland Fisheries Service, Department of Primary Industries.


Page 94

QFS 2001. Fisheries (East Coast trawl) Management Plan 1999 Plan review Paper. Permitted Species (Other than principal species) and Steaming Day Review. Information Series QI 01055. Department of Primary Industries. 43 pp.

Robins, J. B. 1995. Estimated catch and mortality of sea turtles from the East Coast Otter Trawl Fishery of Queensland, Australia. Biological Conservation. 74:157-67.

Robins, J. & Courtney, A. J. 1998. Status report on bycatch within the Queensland Trawl Fishery. In ‘Establishing meaningful targets for bycatch reduction in Australian fisheries’. Australian Society for Fish Biology Workshop Proceedings, Hobart. pp 24-45.

Robins, J. B. & Mayer, D. G. 1998. Monitoring the impact of trawling on sea turtle populations of the Queensland east coast. FRDC Final Report Project No T93/229. Queensland Department of Primary Industries, Brisbane. 60 pp.

Sainsbury, K., Campbell & Whitelaw 1993. Effects of trawling on the marine habitat on the North West Shelf of Australia and implications for sustainable fisheries management. In ‘Sustainable Fisheries through Sustaining Fish Habitat’. Australian Society for Fish Biology Workshop. D.A. Hancock, Ed. pp. 137 45.

Sainsbury, K. and Poiner, I. 1989. A preliminary review of the effects of prawn trawling in the Great Barrier Reef Marine Park. Report to the Great Barrier Reef Marine Park Authority. 49 pp.

Sen, S. & Nielsen, J. R. 1997. Fisheries Co-Management: A Comparative Analysis. Developing and Sustaining World Fisheries Resources: The State of Science and Management. Second World Fisheries Congress. D. A. Hancock, D. C. Smith, A. Grant & J. P. Beumer, Eds. CSIRO. pp. 374-82.

Slater, J., Limpus, C., Robins, J., Pantus, F., Chaloupka, M., Bahr, J. & Redfern, F. 1998. Risk Assessment of Sea turtle Capture in the Queensland East Coast Otter Trawl Fishery. Final Report to Trawl MAC. 31+ pp.

Stobutzki, I., Blaber, S., Brewer, D, Fry, G, Heales, D., Miller, M., Milton, D., Salini, J. Van der Velde, T., Wassenberg, E., Jones, P., Wang, Y., Dredge, M., Courtney, A., Chilcott, K. and Eayrs, S. 1999. Ecological Sustainability of Bycatch and Biodiversity in Prawn Trawl Fisheries. Report on Project No. 96/257 to the Fisheries Research and Development Corporation. 512 pp.

Sumpton, W., Gaddes, S., McLennan, M., Campbell, M., Tonks, M., Good, N. and Hagedoorn, W. (2002). Assessing the Blue Swimmer Crab Fishery in


Page 95

Queensland. Report to the Fisheries Research and Development Corporation, Project No. 98/117. 151 pp.

Switala, J. & Taylor-Moore, N. 1999. Queensland’s Commercial Fishing Fleet Licence Packages. Fleet structure and fishing port activities 1996-97. DPI, Queensland. 126 pp.

Turnbull, C. and Gribble N. 2002 Current assessment of the northern Queensland tiger and endeavour prawn stocks. AFFS Fisheries and Aquaculture. Unpublished report.

Watson, R. A. & Goeden, G. 1989. Temporal and spatial zonation of the demersal trawl fauna of the central Great Barrier Reef. Memoirs of the Queensland Museum. 27:611-20.

Watson, R. A., Dredge, M. C. L. & Mayer, D. G. 1990. Spatial and seasonal variation in demersal trawl fauna associated with a prawn fishery on the central Great Barrier Reef, Australia. Australian Journal of Marine and Freshwater Research. 41:65-78.

Watson, R. A., Turnbull, C. T. & Derbyshire, K. J. 1996. Identifying tropical penaeid recruitment patterns. Marine and Freshwater Research. 47:(1)77-85.

Williams, L. 2002. Queensland’s Fisheries Resources. Condition and Trends 1988-2000. Department of Primary Industries, Queensland Government. 180 pp.

Williams, L. 1997. Queensland’s Fisheries Resources. Current condition and recent trends 1988-1995. Queensland Department of Primary Industries, Brisbane. 101 pp.

Williams, M. J. and Dredge, M. C. L. 1981. Growth of the saucer scallop, Amusium japonicum balloti Habe in Central Eastern Queensland. Australian Journal of Marine and Freshwater Research. 32: 657-666.

Zeller, B. 1999. Queensland’s fisheries habitats: Current condition and recent trends. Department of Primary Industries, Queensland Government.

Abbreviations and Acronyms AFFA Department of Agriculture, Fisheries, Forestry Australia AFFS DPI Agency for Food and Fibre Sciences AFZIS Australian Fishing Zone Information System BACI before, after, control impact


Page 96

BRD Bycatch Reduction Device CFISH QFS Commercial Fisheries Information System CHRIS Coastal Habitat Resources Information System CITES Convention of the International Trade of Endangered

Species CPUE catch-per-unit-effort CRC Reef Co-operative Research Centre for the GBRWHA CW carapace width EA Environment Australia EAC East Australia Current ECERS Electronic Catch and Effort Reporting System ECOTF East Coast Otter Trawl Fishery EPBC Act 1999 Commonwealth Environmental Protection and Biodiversity

Conservation Act 1999 ESD Ecologically Sustainable Development EU effort unit FRDC Fisheries Research and Development Corporation GBR Great Barrier Reef GBRMP Great Barrier Reef Marine Park GBRMPA Great Barrier Reef Marine Park Authority GBRWHA Great Barrier Reef World Heritage Area The Guidelines Environment Australia Guidelines for Ecologically

Sustainable Management of Fisheries, September 1999. HPA Highly Protected Area LTMP QFS Long Term Monitoring Program MAC Management Advisory Committee OCS Offshore Constitutional Settlement QB&FP Queensland Boating and Fisheries Patrol, the enforcement

unit of QFS QCFO Queensland Commercial Fishermen’s Association (now the

QSIA) QDPI Queensland Department of Primary Industries QECTF Queensland East Coast Trawl Fishery QFMA Queensland Fisheries Management Authority QFS Queensland Fisheries Service QSIA Queensland Seafood Industry Association RAP Representative Areas Program RFISH QFS Recreational Fisheries Information System SAG Scientific Advisory Group SFA Serious Fisheries Offence


Page 97

TED Turtle Excluding Device Trawl MAC Trawl Fishery Management Advisory Committee Trawl Plan Fisheries (East Coast Trawl) Management Plan 1999 VMS Vessel Monitoring System WHA World Heritage Area


Page 98


Page 99

Appendix 1 Australian distribution of species taken in the fishery Table A1-1 Australian Distribution of major target and by-product species taken in the Queensland East

Coast Otter Trawl Fishery.

Common Name Scientific Name Known Australian Distribution

saucer scallop Amusium balloti balloti Innisfail Qld - Jervis Bay, NSW

northern calamary Sepioteuthis lessoniana Moreton Bay, Qld - Geraldton, WA

pencil squid Photololigo spp. Botany Bay, NSW - Shark Bay, WA

greasyback prawn Metapenaeus bennettae Rockhampton, Qld - eastern VIC

blue endeavour prawn Metapenaeus endeavouri Ballina, NSW - Shark Bay, WA

red endeavour prawn Metapenaeus ensis Nowra, NSW - Shark Bay, WA

school prawn Metapenaeus macleayi Tin Can Bay, Qld - Corner Inlet, Vic

brown tiger prawn Penaeus esculentus Wallis Lake, NSW - Shark Bay, WA

grooved tiger prawn Penaeus semisulcatus Keppel Bay, Qld - Collier Bay, WA

banana prawn Penaeus merguiensis Tweed River, NSW - Shark Bay, WA

red spot king prawn Penaeus longistylus Keppel Bay, Qld - Shark Bay, WA

eastern king prawn Penaeus plebejus Swain Reefs, Qld - north-east TAS

Moreton Bay bugs Thenus spp. Coffs Harbour, NSW – Shark Bay, WA

blue swimmer crab Portunus pelagicus South-east NSW - Cape Naturaliste, WA

red spot crab Portunus sanguinolentus Indo-Pacific region, tropical and temperate coastlines of Australia

pinky Family: Nemipteridae (5 species)

Indo-West Pacific and eastern Australia depending on the species

cuttlefish Sepia spp., (~15 species) and Metasepia pfefferi

Tropical and warm temperate distributions depending on the species, some endemic to northern or eastern Australia

octopus Octopus spp. (8-10 species) Some endemic to northern or eastern Australia

mantis shrimp Squilloidea (8 species)

Indo-West Pacific and Australian endemic species

barking crayfish Linuparus trigonus Indo-Pacific region, continental slope from Townsville to Swain Reefs in Qld

Balmain bugs Ibacus spp. (5 species) Indo-West Pacific and eastern Australia depending on the species

pipefish Solegnathus hardwickii Solegnathus dunckeri

Innisfail, Qld – Mooloolaba, Qld Mooloolaba, Qld – NSW Border


Page 100

Appendix 2 Summary of the Queensland East Coast Trawl Fishery Management Arrangements, Including Developmental History

Contents

1 Introduction 101 2 Development and Management of the Fishery, 1910 to 1995 102 2.1 1910 to 1979 — Development and Diversification 102

2.2 1979 — Freeze on Further Vessels Entering the Fishery 103

2.3 1983 — Unitisation and the 2:1 Replacement Scheme on Licences 103

2.4 1988 — Twelve Month Total Freeze 104

2.5 1990 — 2:1 Unit Replacement Policy 104

3 Trawl MAC and Access Rights after 1995 105 3.1 Initial Trawl MAC Discussions 105

3.2 The Regulation of Fishing Time As A Management Tool 105

3.3 June 1999 —Draft Management Plan for the Queensland East Coast Trawl Fishery 106

3.4 November 1999— Fisheries (East Coast Trawl) Management Plan 1999 107

3.5 December 2000— Amendment Management Plan 2000 108

4 Current Management Arrangements 108 4.1 Queensland Legislation 108

4.2 State - Commonwealth Jurisdictional Arrangements 109

4.3 The Great Barrier Reef Marine Park and the Great Barrier Reef Marine Park Authority 109

4.4 The Great Barrier Reef World Heritage Area 110

4.5 The Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) 111

5 The Trawl Plan 111

5.1 Species that May be Taken 112

5.2 Use of Turtle Excluder Devices and Bycatch Reduction Devices 114

Guidelines for Construction of Turtle Excluder Devices 114 Guidelines for Construction of Bycatch Reduction Devices 114

5.3 Gear controls 115

Length of Nets 115 Area Specific Restrictions on Net Length and Mesh Size 115


Page 101

Ground Chains 115 Sweeps 116 Try Nets 116

5.4 Monitoring requirements 116

Vessel Monitoring System 116 Logbooks 116

5.5 Trawl Closures 116

Permanent Closures 117 Major Seasonal Closures 117 Social Closures 119 Protected Habitat and Threatened Species Closures 119 Economic Closures 119 Scallop Replenishment Areas 119

5.6 Fishing Effort Capping and Reduction 119

Structural Adjustment Scheme 119 GBRMP Closure 121 Engine Power Restrictions 121 Boat Replacement 121 Effort unit trading and licence surrender/transfer provisions 122

5.7 Serious Fisheries Offences 123

5.8 Review Events on Fishing Effort 123

5.9 Emergency Fisheries Declarations 123

6 Institutional Arrangements 123 6.1 Advisory Committees 124

6.2 Research 124

6.3 Enforcement 124

7 Enforcement and Compliance 125 7.1 Compliance Levels 125

1 Introduction As a major part of the Queensland East Coast Trawl Fishery (QECTF), the East Coast Otter Trawl Fishery (ECOTF) has recently undergone significant change in its


Page 102

management arrangements. A number of resource management measures have been implemented by Government to cap the level of effort in the fishery, to reduce this effort over time and to reduce the area fished. These measures have been put in place to improve the ecological sustainability of the fishery and to reduce its impacts on the environment in which it operates. This is of particular importance given that over 60% of the fishery is within the Great Barrier Reef Marine Park/World Heritage Area (GBRMP/WHA). Increasing trawl effort has been a concern to industry, managers and the public since the expansion of the fleet in the late 1970s. There has been comprehensive consultation and long, intense discussion over future directions for management of the QECTF. There is a genuine desire on all sides to limit the expansion of effort on purely economic grounds, together with growing community concern about the environment. The QECTF has been an input-managed fishery, that is, managers have focussed on regulating the inputs (fishing time, vessels, gear and areas) rather than outputs (catch). Management strategies have relied on vessel restrictions (size, engine power, replacement and upgrades), gear limits and seasonal and area closures to fishing. Such measures have been diluted through fishers adopting new technology (e.g. radar, sonar and GPS plotters), so vessels have improved efficiency. 2 Development and Management of the Fishery, 1910 to 1995

2.1 1910 to 1979 — Development and Diversification In Queensland, the use of net fishing gear was first regulated by the Queensland Fisheries Act 1877. It was not until 1910, when the Federal Fisheries Investigation steam trawler Endeavour caught large tiger prawns off Bowen in 24 fathoms of water, that the potential for a commercial trawl fishery was identified. Until the 1950s the capture of prawns was limited to seine and stripe nets, set pocket nets and eventually beam trawl nets. In 1950, a State-wide prohibition on otter (board) trawling was rescinded and the Moreton Bay fishery was quickly established, producing 136 tonnes in 1952-53. During 1950-70, grounds were opened up along the Queensland east coast, focussing initially on inshore species such as banana prawns. This was probably due to the pronounced schooling behaviour of this species, which made them particularly susceptible to capture by trawling. The discovery of saucer scallop grounds off Bundaberg in 1955 allowed further diversification. The Challenge survey of the prawn resources of Eastern Australia in 1957 allowed the rapid development of offshore prawning grounds, with fishers leapfrogging to new areas along the coast.


Page 103

The introduction of twin net fishing in 1960, the widespread adoption of radar in the mid 1960s and the emergence of lucrative export markets for prawns, scallops and other products in countries such as Japan, encouraged the rapid expansion of the trawl fleet. The late 1960s also saw the discovery and rapid expansion of the lucrative Northern Prawn Fishery based in the Gulf of Carpentaria. By 1976, the QECTF had grown to over 700 vessels.

2.2 1979 — Freeze on Further Vessels Entering the Fishery A freeze on further vessels entering the Gulf of Carpentaria fishery was announced in 1977. In September 1979, the relocation of displaced Gulf vessels to the east coast caused the Queensland Government to announce a freeze on the number of State-licensed prawn trawl vessels allowed to fish the QECTF. Queensland fishers were rightly concerned that the QECTF was becoming a dumping ground for redundant trawlers from the Gulf and that their fishery would soon be overfished. Prior to the freeze on further trawl licences on the Queensland east coast, speculative investment in vessels caused rapid fleet expansion. Despite the increase in fleet size, greater time at sea, new fishing grounds and increased fishing efficiency, total landings only increased marginally, and landings per vessel declined. This, together with increased costs (fuel prices, interest rates and inflation) contributed to a decrease in profitability. Contrary to expectations, the announcement of the freeze on further entry increased the number of vessels in the industry, with vessel numbers almost doubling. The main reason for the increase was a loophole allowing speculators, who were able to argue that they had made a commitment to build a trawler prior to the announcement, obtaining licences. The fleet peaked at 1,413 vessels in 1981, double that of 1977. (The number of vessels has since reduced to 589 in October 2001)

2.3 1983 — Unitisation and the 2:1 Replacement Scheme on Licences The QECTF has evolved from an open entry fishery to a limited entry, input controlled fishery. As well as attempting to stop the addition of new vessels to the QECTF, policy initiatives have been taken to restrict the replacement of existing, older vessels with new, state-of-the-art vessels. The 1979 freeze also limited trawlers working north of Cairns to less than 20 metres (to prevent larger, Gulf of Carpentaria endorsed vessels returning to the East Coast) and the replacement of existing vessels on a “one-for-one” basis (i.e. replacing an existing 14.5 m vessel with a new 14.5 m vessel). In 1983, the freeze on new entry continued and the replacement policy relaxed to permit a tolerance of “not more than one metre” increase for the replacement vessel. There were no constraints on engine power or gear, so vessels became more powerful, faster and vessels were equipped with larger nets. This increase in fishing effort prompted a tighter definition of vessel dimensions, which coincided with similar moves to precisely measure vessel dimensions (unitisation) in the Gulf fishery. These measurements included both the under deck volume of the hull (length x breadth x depth) together with main engine units defined for each vessel. Vessel replacement


Page 104

was then allowed on a one-for-one basis (units) with upgrade to a larger vessel only permitted on the acquisition of additional trawl vessel units (amalgamation), with the compulsory surrender of the surplus licenses. Thus the policy was a 2:1 replacement scheme on licenses and encouraged the amalgamation of smaller vessels into fewer, larger replacement vessels. The maximum vessel length limit of 20 m was retained. Practical difficulties were encountered in enforcing the main engine unit component of the unitisation policy. Falsified engine specifications, boosting power with mechanical alterations and such, meant that fishers were able to increase the power of vessels without purchasing additional engine units. The engine unitisation scheme was thus abandoned in August 1987 and all vessels were allowed to upgrade engines to a maximum of 300 kw. The effective effort of the fleet thus continued to grow.

2.4 1988 — Twelve Month Total Freeze In December 1988, the Hon. Minister for Primary Industries, announced a twelve-month total freeze on “ the replacement, upgrading and modification of all otter trawlers licensed to operate on the Queensland East Coast”. The media release stated that “the present policy is no longer effectively constraining effort in the fishery”. It added that the freeze would “ provide the opportunity to prevent increases in fishing effort in the short term and in the longer run should allow policies to be implemented which will lead to an overall reduction in effort in the fishery to the benefit of the resource and the industry”.

2.5 1990 — 2:1 Unit Replacement Policy In August 1990, the freeze and the 2:1 license replacement policy were superseded by a 2:1 unit replacement policy. In other words, for those fishers seeking to replace, say, a 30 unit vessel with a 40 unit vessel (units being underdeck volume), a total of 80 units would need to be purchased (that is a further 50 units to the 30 already held) and 40 of these compulsorily surrendered. A further constraint is that 40 units must be from one boat licence. This is the policy as it currently stands. Although the 2:1 licence replacement policy of 1985 resulted in the significant reduction in the numbers of licences, concern at the level of amalgamation of smaller vessels into fewer, larger vessels resulted in the freeze on replacement to be imposed in 1988. The mean proportional change (in terms of hull units) for replaced vessels under the 2:1 license policy showed a dramatic increase during 1986-88 with the replacement vessels larger under this policy. Thus, although there was a reduction in the numbers of licenses, there was probably an overall increase in effort through the amalgamation of smaller vessels into fewer but larger vessels.


Page 105

3. Trawl MAC and Access Rights after 1995 Since 1995 a Trawl Fishery Management Advisory Committee (Trawl MAC) has provided advice on development of a Management Plan and other matters for strategic management of the QECTF. Trawl MAC is made up of experts with fishing (commercial, recreational and indigenous), processing/marketing, conservation, enforcement, scientific and GBRWHA management interests and is led by an independent Chairperson.

3.1 Initial Trawl MAC Discussions In June 1995 at a Trawl MAC meeting, it was noted that a number of attempts had been made to define a Management Plan for the QECTF. These attempts included the Trawl Situation Paper (Anon. 1991); the Framework for Management Paper (Glaister et al. 1993); and a range of other in-house documents that all basically said there was too much effort in the fishery. The new Trawl MAC noted that their main function was to define a management direction for the fishery and endorsed a definition of the QECTF as: “The Queensland trawl fishery is a multi-species fishery with participants targeting several species of prawns, saucer scallops and fin-fish with a range of other species taken incidentally. It involves the use of several types of trawl apparatus and occurs throughout Queensland jurisdictional waters.” The Trawl MAC further endorsed the principles of economically sustainable development as defined in the Fisheries Act 1994, specifically, that fishing should be “…carried out in a way that maintains bio-diversity and the ecological processes on which fisheries resources depend…” In the March 1996 Trawl MAC meeting a number of options for management strategies —transferable time quotas; a buy-back scheme; compulsory unit surrenders and through boat replacement were noted. Discussion focussed on the need to reduce effort through restructuring the fleet.

3.2 The Regulation of Fishing Time As A Management Tool At a subsequent meeting in June 1996, the Queensland Commercial Fishermen’s Organisation (QCFO) presented a paper on management options, which included a detailed outline of a Transferable Time quota option. It was proposed that the number of fishing days allocated would be based on the greatest number of fishing days the fishing vessel fished in any one of the years since the introduction of logbooks, with an additional allocation (ten percent of the initial allocation rounded up to the nearest ten days) for non-fishing time and breakdowns. The QCFO Options Paper also drew attention to the need for an accurate method of monitoring the time quotas via a telephone paging service. The proposal listed a number of advantages of the approach, including-transferability, reduction of effort,


Page 106

restructuring ability and equity. The Paper also referred to the Torres Strait Prawn Fishery which had a similar scheme in place. In this fishery although the 110 vessels had the potential to fish for 30,250 days, following the allocation of fishing days, the maximum number of days in the fishery had been restricted to 13,570 days. The Trawl MAC prepared a Discussion Paper for the Queensland Fish Management Organisation (QFMA) (Anon. 1996) and for the first time, canvassed the option of a transferable allocation of time (quota) as a means of restructuring the fishery. The Discussion Paper incorporated an extensive public consultation process through a series of port meetings and the opportunity for interested parties to forward submissions. This formed the basis for the development of a Draft Management Plan. At the May 1997 Trawl MAC meeting, the QCFO again flagged the concept of time quota as a strategy for the management of the fishery, which was supported by members. A subsequent meeting in November 1997 proposed a minimum allocation of 2,000 effort units (hull x days) for all vessels to address the issue of licence devaluation for smaller boats with little history.

3.3 June 1999 —Draft Management Plan for the Queensland East Coast Trawl Fishery Outcomes of the Discussion Paper consultation process were released in February 1998 (Anon. 1998). This document described the proposed management strategy of effort cap and allocation of an effort quota (hull units x days fishing), based on the maximum days fished by the individual vessel in any one year from 1988-1995. This proposal included Moreton Bay vessels. In April 1998 it was resolved at a Trawl MAC meeting “…that effort be capped at current effective levels (limited entry, boat size, net size, engine restrictions remain) and that a maximum of 100,000 boat days (reflect in effort units) {increase to allow for breakdowns} be allocated to the fishery. (That the same applies for Moreton Bay)”. At a subsequent meeting in May 1998, the MAC agreed that effort had to be capped at the 1996 levels by 2002, but that if this level was not achieved by 2001, then other methods should be imposed. Public comment was sought on the proposals in the Proposed Management Arrangements paper (Anon. 1998), and following an analysis of responses and further refinement of arrangements, a Draft Management Plan for the Queensland East Coast Trawl Fishery was released for public comment in June 1999. In the Draft Plan effort units (hull units x allocated days) were to be issued according to the data held by the QFMA with a process described in s.39-s.44 of the draft Plan, and based on an allocation of the highest days recorded under s.39 and a minimum allocation of 2,000 effort units. No predetermined cap was included; the aggregated allocations made up the cap. There were 252 written responses to the draft Plan by the final expiry date of 21 July 1999. In addition, a series of public port meetings were held along the coast. Copies of submissions and other responses were made available to Trawl MAC members. Issues raised at the public meetings are summarised in Table A2-1.


Page 107

Table A2-1. Issues raised at public meetings regarding the Draft Management Plan for the Queensland

East Coast Trawl Fishery

Port Attendance Primary Issue Secondary Issue

Mooloolaba 63 Time unfair to some Transfer penalties

Hervey Bay 116 Equity scheme biased Fishing v steaming

Gladstone 36 Bias towards bigger operators Data falsification

Mackay 37 Bias against northern operators due to weather

Data falsification, zoning

Cairns 74 Capital gain impact Limit to twin gear

Townsville 77 Increasing effort in gbrmp Equity of scheme

Bowen 35 Bias against gbrmp operators, weather

Owners v investors

Bundaberg 45 Big boat bias Owners v investors

Gold Coast 24 Advantage to northern operators due to weather

Transfer penalty

Brisbane 48 Moreton bay issues Interchange time

The time fishing allocation was attractive because it was a new concept and that, given a fair allocation, fishers would not have something “taken away”. Rather, it is recognition of historical participation. Critics saw this as biased against a fisher who chose not to fish as hard as his competitor. Further, it was seen as changing to a new “property/access right” so that rather than the capital value of the entitlement to fish being the number of hull units held, under the new scheme it would be hull units and time allocated.

3.4 November 1999— Fisheries (East Coast Trawl) Management Plan 1999 In November 1999 the Fisheries (East Coast Trawl) Management Plan 1999 (the Trawl Plan) commenced. The primary provisions in the Trawl Plan covered:

• listing of principle species and other permitted species that may be taken by trawl apparatus and held in possession;

• Turtle Excluding Device (TED) and Bycatch Reduction Device (BRD) provisions for the majority of the fishery;

• gear controls;

• monitoring requirements; and

• trawl closures.


Page 108

3.5 December 2000— Amendment Management Plan 2000 In December 2000, amendments to the Plan were released as the Fisheries (East Coast Trawl) Amendment Management Plan 2000. Most fishing in the QECTF takes place in the Great Barrier Reef Marine Park / World Heritage Area. Key issues that the Amendment Plan addressed were implementation of the Premier's Stakeholder Working Group recommendations on:

• compulsory use of BRDs in all otter trawling and use of TEDs in the remaining trawl sectors where their use was previously not regulated (e.g. scallop and deep-water sectors);

• closure of areas (approximately 35% of the GBRMP) with no, or a limited, history of trawl fishing; and

• fishing effort capping and reduction. Additional legislation ensures that the Vessel Monitoring System (VMS) can be used to monitor the use of fishing days and hence ensure that the effort unit monitoring and limitation scheme proposal can be effectively enforced. All of these provisions add to the management arrangements that were implemented for the fishery under the Fisheries (East Coast Trawl) Management Plan 1999, which commenced in November 1999. 4 Current Management Arrangements Until recently the Queensland Government has been the sole agency responsible for the management of commercial fisheries in Queensland waters. However, recent concerns regarding the impact of trawling on the GBR has seen an increasing interest in the management of commercial fishing, in particular trawling, by the Commonwealth Government.

4.1 Queensland Legislation The Queensland Fisheries Act 1994 replaces the Fisheries Act (Qld) 1976-1989 and the Fishing Industry Organisation and Marketing Act 1982-199. The Fisheries Act describes the legal requirements for developing, implementing and changing Fisheries Management Plans. The Fisheries Act provides for the Queensland Fisheries Management Authority (QFMA), now the QDPI to make a Management Plan for a fishery. It describes what a Management Plan must contain and the process by which the Management Plan is made. The Fisheries Act clearly identifies that a Management Plan must be consistent with the principles of Ecologically Sustainable Development and specifies the maintenance of biodiversity and the ecological processes upon which fisheries resources depend. The Trawl Plan is the Management Plan for the QECTF. As the Trawl Plan has legal status as subordinate Queensland fisheries legislation, material changes to the management regime require parliamentary approval.


Page 109

4.2 State - Commonwealth Jurisdictional Arrangements Prior to 1988, vessels were licensed for fishing outside the State’s waters (3 nautical miles) by the Commonwealth Government’s fisheries management agency. A tri-partite Working Group (Commonwealth, New South Wales and Queensland officials), was formed to consider problems with the fishery, but failed to define any solutions. A Task Force was established in 1984 to develop a Management Plan for the fishery, but again merely identified the issues and addressed access options in the border area between the two States. It was not until the advent of the Offshore Constitutional Settlement (OCS) agreement of 1988, that the issue of the entry of Commonwealth-licensed vessels accessing the QECTF was addressed. The OCS agreement recognised the ceding of jurisdiction to Queensland and New South Wales of trawl fisheries in Commonwealth waters off each State. Vessels near the border area and with proof of historical participation were granted access to both in a Concessional Zone. The OCS agreement included the provision for rescinding the agreement by either party, with six months notice of intent. Such an action would mean that the State would only be responsible for State waters out to 3 nautical miles. In addition to the State Commonwealth jurisdictional arrangements, a further consideration is the relationships between agencies. An overriding consideration when considering the management of the GBR is the role of the Great Barrier Reef Marine Park Authority.

4.3 The Great Barrier Reef Marine Park and the Great Barrier Reef Marine Park Authority The Great Barrier Reef Marine Park was established in 1975 under the Great Barrier Reef Marine Park Act 1975. The Great Barrier Reef Region includes all of the Great Barrier Reef ecosystem, with the exception of the extreme north in Torres Strait. The Great Barrier Reef Marine Park, as declared, has five sections constituting approximately 98.5% of the Great Barrier Reef Region. The Great Barrier Reef Marine Park Authority (GBRMPA) is the principal adviser to the Commonwealth Government on the care and development of the Great Barrier Reef Marine Park. GBRMPA’s statutory responsibility is to manage the Marine Park with the goal of “providing protection, wise use, understanding and enjoyment” of the resources of the GBRMP Region in perpetuity. It requires the following to be taken into account in managing the GBRMP:

• the conservation of the GBR;

• the regulation of the use of the Marine Park so as to protect the GBR while allowing reasonable use of the GBR Region;

• the regulation of activities that exploit the resources of the GBR Region so as to minimise the effect of these activities on the GBR;


Page 110

• the reservation of some of these areas of the GBR for the appreciation and enjoyment of the public; and

• the preservation of some parts of the GBR in its natural state, undisturbed by humans except for the purposes of scientific research.

The GBRMPA is required to oversee the management of commercial and other fisheries (including trawl) in the Region. Zoning restricts trawling to certain areas of the Marine Park (and reefal areas are normally trawl-free zones). Trawling has a long history in the GBRMP Region, and is consistent with the multiple-use philosophy espoused as a guiding tenet of management for the area. However, it is evident that trawling affects populations of target species, non-target species and the habitat, and hence could also affect the ecology of both the fished areas and the reef ecosystem as a whole. The question is whether such impacts constitute “reasonable use”, as stated in the GBRMP Act (see above). The GBRMPA has also committed to a “Memorandum of Understanding” with the Queensland Fisheries Management Authority regarding respective roles and responsibilities in the management of the GBR. In recent times the status of this agreement has become uncertain. In many fisheries, trawling has continued for many decades with apparently minimal impacts on indicator populations (e.g. many Northern Hemisphere grounds). However, in other areas, trawling has been linked to population declines (e.g. Gulf of Thailand). Trawling may reduce the numbers of the target species; take large quantities of by-catch, which is discarded; resuspend sediments and raise turbidity; and significantly reduce three-dimensional structure. Trawling is viewed as the most controversial type of commercial fishing. The size and catching power of trawl vessels makes trawling a highly visible activity to the public, and is it viewed as an non-discriminate method of fishing. The management of the trawl fishery is thus of primary concern to the GBRMPA. The GBRMPA considers that all fisheries in the Marine Park should be ecologically sustainable and works with the Queensland Government and the fishing industry to ensure this The GBRMPA is currently rezoning the entire Great Barrier Reef Marine Park using the international Representative Areas Program. As part of the RAP process new ‘No Take’ or Green Zones (areas closed to fishing and collecting) will be created and existing Green Zones expanded to achieve greater protection of biodiversity.

4.4 The Great Barrier Reef World Heritage Area Australia is signatory to the Convention for the Protection of the World Natural and Cultural Heritage 1972. The most significant feature of the Convention is to link together in a single document the concepts of nature conservation and the preservation of cultural sites. By signing the Convention, each country pledges to conserve not only the World Heritage sites situated on its territory, but also to protect its national heritage. The Great Barrier Reef was inscribed on the World Heritage List in 1981.


Page 111

Under the EPBC Act World Heritage Properties are considered to be of national significance. Under this Act certain actions that are likely to have a significant impact on a matter of national environmental significance are subject to a rigorous assessment and approval process. The Great Barrier Reef Marine Park Authority (GBRMPA) is the lead agency for Great Barrier Reef World Heritage Area issues. In 1994, the 25 Year Strategic Plan for the Great Barrier Reef World Heritage Area was produced to provide strategies for managing and preserving the area.

4.5 The Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) The EPBC Act took effect on the 16th July 2000. This Act provides that certain actions that are likely to have a significant impact on a matter of national environmental significance are subject to a rigorous assessment and approval process. As with all fisheries, to be exempt from export controls for native species harvested in the ECOTF, the management agency, in this case the Queensland Department of Primary Industries, must demonstrate to Environment Australia that the management regime complies with the objectives of ecologically sustainable development. This document is the Queensland Department of Primary Industries’ submission to Environment Australia to demonstrate this. 5. The Trawl Plan The Fisheries (East Coast Trawl) Management Plan 1999 and its amendments (the Trawl Plan), under the provisions of the Fisheries Act 1994, provides for the Queensland East Coast Trawl Fishery (the fishery) to be managed in a way that ensures the ecological sustainability of resources and ecosystems upon which the fishery depends. The most recent version of the Trawl Plan and its Amendments are available at: www.legislation.qld.gov.au/LEGISLTN/CURRENT/F/FisherECTMP99_02D.pdf. The aim of the Trawl Plan is to ensure sustainability of the resource and to provide a formal mechanism whereby the performance of the Trawl Plan and the fishery are reported to the public. The implementation of an effective management plan is required to fulfil the chief executive’s obligations to manage the fishery under the principles of ecologically sustainable development to protect and conserve Queensland's trawl fisheries resources and the habitats upon which trawling impacts, now and for future generations. The objectives of the Trawl Plan are to:

• manage the fishery in a way that gives optimal, but sustainable, community benefit;

• ensure fisheries resources taken in the fishery are taken in an ecologically sustainable way;

• ensure the sustainability of the fishery’s ecological systems;


Page 112

• provide for an economically viable, but ecologically sustainable, trawl fishery; and

• ensure fair access to fisheries resources taken in the fishery, on a sustainable basis, among the following groups and persons in the groups - commercial fishers; recreational fishers; Aboriginal and Torres Strait Islander fishers and

• other users of the fisheries resources.

5.1 Species that May be Taken The Trawl Plan defines permitted species as those that may be taken by trawling and held in possession. All other species must be returned to the water. The Trawl Plan also defines principal species as those species that may be targeted (Table A2-2). Several of the permitted species have maximum possession limits and/or minimum legal size limits under the Trawl Plan (Table A2-2).


Page 113

Table A2-2. Principle and permitted species taken in the ECOTF, maximum possession limits, legal

size limits and other restrictions where applicable.

Species Maximum Possession Limit

Legal Size Limits1 Other

Principle Species

Prawns

Scallops Less than 9 cm from 1 January to 1 May and less than 9.5 cm from 1 May to 1 January

Bugs Less than 7.5 cm carapace

Possession of egg-bearers prohibited

Squid

Permitted Species

Barking crays Possession of egg-bearers prohibited

Balmain bugs Less than 10 cm carapace

Possession of egg-bearers prohibited

Cuttlefish 66 litres

Mantis shrimp 15 litres (can only be taken in Moreton Bay)

Octopus 66 litres

Three spot crab Less than 10 cm carapace

Possession of females prohibited

Pinkies 198 litres

Pipefish (2 species) 50 individuals in total (applies to Solegnathus dunckeri & Solegnathus hardwickii only, no other syngnathid species may be retained)

Blue swimmer crabs 100 crabs in Moreton Bay, and 500 outside Moreton Bay

Less than 15 cm carapace

Possession of females prohibited

1 If caught fish of this size may not be retained. Appendix 4 lists the scientific names and geographic distributions of these species. New species may be added to the permitted species list only through assessment of an application for conducting developmental fishing of species under s.35 of the Fisheries Regulation 1995.


Page 114

5.2 Use of Turtle Excluder Devices and Bycatch Reduction Devices TEDs and BRDs are required in all nets in the ECOTF except for try nets. A try net is a relatively small net used for sampling the abundance of target species. Its use is restricted as described in the ‘Try Net’ section below. Guidelines for Construction of Turtle Excluder Devices A turtle excluder device (TED) is a device fitted to the net, or a modification made to the net, allowing turtles to escape immediately after being taken in the net. The Trawl Plan describes the type of TED that must be used in the trawl net. A TED must consist of a rigid or semirigid barrier of inclined bars that is attached to the net’s circumference. The purpose of the barrier is to deflect turtles and other large animals through an opening in the net. The Trawl Plan requires that the bars of a TED be no more than 12cm apart and the opening in the net must be at least 76cm wide. Guidelines for Construction of Bycatch Reduction Devices A bycatch reduction device (BRD) is any device fitted to the net, or a modification made to the net, that allows bycatch to escape after being taken in the net. The Trawl Plan describes five types of BRDs that can be used: square mesh cod end; square mesh panel; fisheye; big eye and radial escape section (Figure A2-1).


Page 115

Figure A2-1 Bycatch reduction devices that can be used under the Trawl Plan.

5.3 Gear controls Length of Nets Operators in the T1 fishery only use otter trawl apparatus even though beam trawling is permitted. However should an operator choose to use beam trawls in the future they would be restricted to a 40m beam under the Trawl Plan. Operators in the T2 fishery may only use otter trawl apparatus. When using otter trawl apparatus, operators in the T1 and T2 fishery are restricted to various net lengths depending on where trawling occurs (see below for area net size restrictions). The length of a net is determined by combining the lengths of the head and foot ropes. Area Specific Restrictions on Net Length and Mesh Size In all waters other than those below, the maximum net length is 88 m with allowable mesh sizes between 38 mm and 60 mm south of Cape Gloucester and between 45 mm and 60 mm north of Cape Gloucester. When a net is used for the primary purpose of taking scallops a maximum net length of 109 m may be used with mesh of at least 75 mm. A maximum net length of 18.6 m and minimum mesh size of 28 mm may be used in Laguna Bay. A maximum net length of 32.5 m and a mesh size between 38mm and 60mm may be used in the following areas:

• An area off Bribie Island

• Hervey Bay

• Facing Island

• Keppel Bay

• Repulse Bay

• Cleveland Bay A maximum net length of 184 m and mesh size between 38 mm and 60 mm may be used in the deepwater area (waters deeper than 50 fathoms). Ground Chains There are concerns about the damage to benthic communities and structures caused by dragging ground chains across the seabed. Previously, under the Fisheries Regulation 1995, the size of ground chains was not restricted and operators determined an appropriate size for their type of operation. To ensure that the impact of ground chains on the seabed and its associated communities is minimised, maximum chain diameters of 10 mm and 12 mm for inshore and offshore trawl gear respectively have been implemented in the Trawl Plan. Also, only one length of chain may be used in front of a net and no additional weights may be fixed to the chain.


Page 116

Sweeps Net sweeps join otter boards to the head rope and/or bottom rope of trawl nets. Sweeps are a necessary part of the design of fish trawls - fish trawls use 50-100 m sweeps as part of their configuration, but their effectiveness as a means of taking prawns is limited. Under the Trawl Plan, sweeps must be kept short to minimise the capture of finfish. Maximum sweep lengths apply to prawn and scallop trawling of no greater than 3 metres in Hervey Bay and 10 metres for nets used elsewhere in the fishery. Try Nets A try net is a small net used to sample the size distribution and abundance of prawns and scallops in the area being fished. These nets are used for short periods of time up to 25 minutes. Try nets are included in the overall maximum length of an otter trawl net. A try net may have a head rope length not longer than 10m and may be used for a period of time no longer than 25 minutes for testing or sampling for prawns or scallops. TEDs and BRDs are not required in try nets because they do not pose a threat to turtles, given the size of the net and the short “shot” time and take little bycatch.

5.4 Monitoring requirements Vessel Monitoring System Operators are required to install a Vessel Monitoring System (VMS) onto their boats and ensure that it is fully operational at all times. VMS is a major tool in an effective monitoring and compliance program for the fishery. It is also essential to monitor the position of boats at all times to determine their location in relation to closed areas and the use of trawl days. For those operators who find that their VMS units have malfunctioned and are not operating the Trawl Plan includes a system of compulsory manual reporting. Logbooks Under the Fisheries Act 1994 it is compulsory for commercial fishers to report their catch and effort information through logbooks. The information collected through the logbook program is used for research and management purposes. New logbooks were issued from 1 January 2001 to meet the broader information requirements of the Trawl Plan. Further changes to the permitted species list in December 2001 required the development and distribution of a new logbook in mid-2002.

5.5 Trawl Closures The ECTF covers some 546, 000 km2 within tidal waters less than 400 m deep between Cape York and the Qld/NSW border. Approximately 60% of the ECTF area has some restriction on trawling by way of permanent, or major seasonal fishing closures made by QFS or zones closed to trawling in the GBRMP and State Marine Parks. Other localised temporal closures have been implemented for social reasons primarily to reduce conflict with other users of the coastal zone.


Page 117

Permanent Closures Approximately one-third of the fishery area is permanently closed to trawling subject to QFS closed waters declarations, or protective zoning by GBRMPA and the Queensland Environmental Protection Agency (Figure A2-2).

Figure A2-2 Areas permanently closed to trawling Major Seasonal Closures The major northern and southern trawl closures were implemented under the Trawl Plan primarily for economic reasons. The northern closure was introduced to prevent growth overfishing of tiger and endeavour prawns by allowing prawns to grow to optimum size before capture. The southern closure was introduced to optimise yield from scallops and to create a mechanism for preventing transfer of effort from north to south Queensland waters during the traditionally quiet period in northern Queensland.


Page 118

Both the northern and southern major closures are divided into two periods. The first periods are closures to all trawling whereas the second periods are closures for only those operators who chose to trawl elsewhere in the fishery area during the first period. The first northern closure is from midday 15 December to midday 1 March each year and covers all waters north of latitude 22° (Figure A2-3), except waters where deepwater nets can be used. The second closure, for the same area, is from midday 1 March to midday 14 May each year. The waters of the Swain Reefs and Hydrographers Passage are closed from midday 15 December to midday 1 March each year. All trawler operators are eligible to fish in this area from midday 1 March. The major southern closures include all waters south of 22° latitude, except waters where deep water nets can be used and the waters of Moreton Bay (Figure A2-3). The first southern closure is from midday 20 September to midday 1 November each year. The second southern closure applies from midday 1 November to midday 12 December each year.

Figure A2-3 Major seasonal closures


Page 119

Social Closures A range of inshore closures have been implemented near heavily populated or tourist centres along the coastline. The reasons for implementing these closures include:

• reducing the potential for trawl bycatch discards to wash up on beaches, especially in tourism centres; and

• removing boat noise from heavily populated areas. Protected Habitat and Threatened Species Closures The Trawl Plan includes a range of closures to protect important nursery habitats for prawns and threatened species. Areas permanently closed to trawling include inshore areas between Cairns and Cape York to protect major seagrass habitats. Seasonal closures have been implemented to protect mating loggerhead sea turtles with the most recent closure being implemented near Fraser Island from Sandy Cape to Rooney Point from midday on 20 September to midday on 1 February each year. Other closures to prevent turtle/trawl interaction near sea turtle rookeries during peak nesting times have been implemented through Marine Park Zoning (e.g. Woongarra Marine Park near Bundaberg). Economic Closures A range of inshore closures have been implemented to protect nursery grounds so that juvenile prawns can grow to optimum size before capture. Two of these closures are off the eastern shore of Fraser Island and between Moreton and North Stradbroke Islands in Moreton Bay. Significant daylight trawl closures have been implemented under the Trawl Plan to reduce effort in the fishery by ensuring that 24 hour trawling does not occur. Major daylight closure areas include the major scallop area, the far north area and offshore waters between Broadsound and Dunk Island. Scallop Replenishment Areas Scallop replenishment area closures facilitate the regeneration of scallop stocks and were implemented to address concerns about the sustainability of the scallop sector of the fishery. The replenishment areas cover three known high-density areas for scallops, and enable scallops to spawn each year in high densities, and thus when the probability of successful fertilisation is high. A series of rotational closure zones within scallop replenishment areas now applies under the Trawl Plan. The protection of saucer scallop broodstock will be maintained through closures. However, these closures will be periodically opened so that older scallops can be harvested. The introduction of a rotational scheme within the scallop replenishment areas will allow greater levels of flexibility and access by trawl operators, while still providing the necessary level of protection to allow regeneration of scallop stocks through reproductive cycles.

5.6 Fishing Effort Capping and Reduction Structural Adjustment Scheme Total fishing effort in the QECTF under ‘T1’ and ‘T2’ licences was capped at the 1996 level of fishing effort and immediately reduced by 15% through two mechanisms. First, a Structural Adjustment Scheme for the QECTF, funded equally and jointly by


Page 120

the Commonwealth and Queensland Governments, has removed 10 % of fishing effort for a total of $20 million. Secondly, effort was reduced by a further 5% through capping fishing effort at the 1996 level (108,346 days), less 5% to (102,929). Agreement to the second mechanism was industry’s contribution to the 15% reduction, rather than directly contributing $10 million to the Structural Adjustment Scheme. Under the Trawl Plan 96 000 fishing days were allocated to eligible T1 and T2 licence holders. A further 6 929 fishing days were held back pending applications for supplementary days based on special circumstances and appeals to the Fisheries Tribunal. The appeals are on-going however any days left over after all appeals have been heard may be distributed equally to licence holders. While fishing days were the basis of deciding individual allocations, effort units are the core of the effort cap and will be the basis of determining the amount of effort used annually in the fishery. Review events on the status and sustainability of the fishery will also require the monitoring of effort units. Effort units are calculated by multiplying an effort unit conversion factor (the catching capacity of a boat based on its size) by the number of fishing days allocated. Each year individual licence holders are issued with an Effort Unit Certificate that states the number of fishing days that the boat identified on the certificate may use for trawling during the year. A fishing day is a 24-hour period, from midday to midday or midnight to midnight depending on the licence holders choice and the type of trawling being undertaken. VMS is used to determine if a boat has been used for trawling during a day in the effort year. If the boat is detected by VMS as being in the fishery area then a day is deducted from the licence holder’s quota of days for the year unless:

• The boat has not moved during the day (a boat can drift 1,000m in the deepwater area and 250m in other waters and still be considered as having not moved);

• The boat moved at a speed of not less than 5.0 knots during the day;

• The boat was in closed waters within the fishery area;

• The licence holder of the boat applied and was given a prior exemption to travel within the fishery area without trawling or to use another fishery symbol other than T1 or T2.

If the VMS on the boat malfunctions or is switched off then a day will be deducted from the licence holder’s quota of days for the year unless the licence holder of the boat applied and was given an exemption to allow maintenance on the boat. In addition to each licence holder being issued with a specified number of fishing days, every licence holder is issued with 4 steaming days. Steaming days are issued in recognition that in certain circumstances the VMS will determine erroneously that a boat has been used to trawl on a particular day. Because it is unknown when individual operators would require a steaming day to be used they are treated the same as a fishing day in terms of the VMS monitoring system. Originally 14 steaming days were issued to each licence holder. However, following the November 2001 Review of Steaming Days required under the Trawl Plan, this was reduced to four.


Page 121

GBRMP Closure While there is a cap on total fishing effort in the ECOTF, the GBRMPA was concerned that effort in the GBRMP area could increase through a migration of trawl operators from outside the GBRMP. Consequently, an annual cap on the number of fishing and steaming days in the GBRMP area was introduced under the Trawl Plan. This allows for the implementation of a trawl closure in the GBRMP five days after a set number of notional effort units is reached. The five days provides the QFS time to notify each licence holder that the fishery will be closed. Engine Power Restrictions Limiting engine power has been a management tool used in the fishery for many years to contain fishing power and hence fishing effort. Restrictions on engine power have previously been implemented in the fishery through the application of a policy on boat replacements. The policy includes a provision that an engine may be replaced on a trawler but it must not be greater than 300 kW. The maximum engine power of a vessel in the fishery has now been included in the Trawl Plan so that 300 continuous kW is the maximum size engine that may be used (1kW is approximately 0.75 brake horse power). Boat Replacement For replacement of a boat with a ‘T1’ or ‘T2’ licence the boat replacement provisions under the Trawl Plan requires a certain number of effort units to be surrendered. The number depends on the size of the replacement boat (see Panel 1). In recognition that a licence holder replacing their boat surrenders significant effort units, the Trawl Plan provides for a licence holder to purchase effort units to limits denoted under Schedule 5 of the Trawl Plan without the 10% surrender provision.

Panel 1 Example of a hypothetical case of Effort Units being surrenderedwhen a boat is replaced

Boat FXXXHull Units 27Effort unit conversion factor 30Fishing Days 200Effort Units 6 000

Boat FXXX is to be replaced by a new boat FYYY that has 39 Hull Units .

Ste p 1 The number of Effort Units to be surrendered for a 39 Hull Unit boat is 1 707.

Ste p 2 Subtract 1 707 effort units from the 6 000 effo rt uni ts held by the licence holder to get 4 293.

Ste p 3 Divide 4 293 effort unit s by an effort unit conversion fac tor of 40 to obtain the number of fi shingdays. This equates to 107 Fishing Days.

The following new boa t will be in troduced into the Fishery:

Boat FXXXHull Units 39Effort unit conversion factor 40Fishing Days 107Effort Units 4 293


Page 122

Effort unit trading and licence surrender/transfer provisions Effort units are transferable so licence holders can increase or decrease their number of fishing days by either buying or selling effort units. Effort units can also be transferred with a licence when it is transferred from one person to another. Licence holders are required under the Trawl Plan to surrender effort units when they are transferred as follows:

• The transfer of effort units only (i.e. no licence being transferred) will require the surrender of 10% of the effort units being transferred (see Panel 2).

• The transfer of effort units with a licence will require the surrender of 5% of the effort units transferred, except in the case of a transfer from a deceased estate (see Panel 3).

A distinction is required between effort units allocated to licence holders with different fishery symbols (either T1 or T2). The Trawl Plan provides for T1 effort units and T2 effort units and for T1 effort units to be converted to T2 effort units when transferred from a T1 licence to a T2 licence. However the transfer and conversion of T2 effort units to a T1 licence may only be on a 2:1 basis. Thus reducing the incentive to enter T1 fishery and limiting the fishing effort that can be applied outside the T2 concessional zone.

Panel 2 Example of a hypothetical case where Effort Units would be surrendered when t hey are transferredbetween li cence holders (Note: the l icence is not transferred)

Boat 1 Ef fort unit conversion factor (50) 100 days=5 000 Effo rt Units

Boat 2 Ef fort unit conversion factor (40) 50 days =2 000 Effo rt Units

The transfer of 2 000 Effort Unit s from Boat 1 to Boat 2 would result in the follow ing:

Boat 1 Ef fort unit conversion factor (50) 56 days =2 800 Effo rt Units

Boat 2 Ef fort unit conversion factor (40) 100 days=4 000 Effort Units

(Note: an additional 200 Effort Units have been remov ed from Boat 1 to account for the 10 percent reductionand the increase in fishing days a s a result of Effort Units going from a large to a small boat)

Panel 3 Example of a hypothetical case where Effort Units would be surre ndere d when a licence istransferr ed.

Example Pe rson A has a Commercial Fishing Boat Lice nce with a tr aw l endorsement attache d to thefollowing boat:

Boat FXXX Ef fort unit conversion factor (50) 100 days=5 000 Effort Units

Pe rson A transfers the B oat FXXX and attaching licences to Person B.

Pe rson B ends up wit h the following:

Boat FXXX Ef fort unit conversion factor (50) 95 days = 4 750 E ffort Units

(Note: 5 percent of Effort Units have been removed)


Page 123

5.7 Serious Fisheries Offences S. 235 of the Trawl Plan lists a range of serious fisheries offences (SFOs). These include:

• fishing in closed waters under the Trawl Plan and the Great Barrier Reef Marine Park Act 1975

• failure to comply with VMS provisions under the Trawl Plan

• possessing regulated fish specified under the Trawl Plan If convicted of a SFO, the boat operator and in some instances the boat licence holder may be required to show cause why their licences should not be suspended. The Trawl Plan lists the length of suspension that should apply in the case of a person being convicted for one, two, three or four separate SFOs.

5.8 Review Events on Fishing Effort Under s.227 of the Trawl Plan, a review event on fishing effort is required before 2004. The chief executive must review the Trawl Plan and decide whether the fishing effort in the fishery and the impact of the fishery on the environment are ecologically sustainable. If the chief executive decides that effort is at other than sustainable levels, the Trawl Plan must be amended in a way that reduces fishing effort to achieve ecological sustainability and in a way that reduces impacts on the environment before 2006. In Appendix 5 there is a full listing of these and other review events under the Trawl Plan.

5.9 Emergency Fisheries Declarations Under s.46 of the Fisheries Act 1994, the QFS may make an Emergency Fisheries Declaration effecting an emergency closed season, closed waters declaration or regulated fish declaration. Such a declaration may be made only if the QFS is satisfied that urgent action is needed to meet a significant threat to fisheries resources or a fish habitat or another emergency. The QFS must publish the declaration but is not required to enter into consultation about the declaration. The declaration expires within 2 months of its gazettal unless earlier repealed. Where the declaration is inconsistent with a Regulation or Management Plan unless earlier repealed, the declaration expires 21 days after gazettal. 6 Institutional Arrangements The Queensland Department of Primary Industries (QDPI) is the lead agency for research and enforcement roles for the State’s marine and freshwater fisheries and fish habitats. It also develops strategic policy on the sustainable use and allocation of


Page 124

fisheries resources between fishery sectors, ensures habitats that fisheries rely upon are protected and integrated into development control and coastal planning instruments and that there is robust routine assessment and monitoring of Queensland’s fisheries management regimes. Fishery management in Queensland follows a consultative model (Sen and Nielsen 1997), where there are mechanisms for government to consult with users (and other stakeholders), but where ultimate responsibility on implementation of resource management initiatives rests with the Minister in consultation with the Queensland Government Cabinet.

6.1 Advisory Committees Since 1995, a Trawl Fishery Management Advisory Committee (Trawl MAC) has provided advice on development of a Management Plan and other matters for strategic management of the QECTF. Trawl MAC is made up of experts with fishing (commercial, recreational and indigenous), processing/marketing, conservation, enforcement, scientific and GBRWHA management interests and is led by an independent Chair. Special scientific and technical advice is provided to fishery management through a Scientific Advisory Group (SAG) advising Trawl MAC.

6.2 Research QDPI fisheries scientists collect and analyse data to provide information on fisheries biology, trends in stock status and ecosystem impacts to ensure informed management of the ECOTF. The research undertaken demonstrates commitment and innovation in identifying needs and responding to challenges confronting the trawl industry. Information from research is the foundation for developing a sustainable management regime for the fishery.

6.3 Enforcement The services of the Queensland Boating and Fisheries Patrol (QBFP) are essential for maintaining efficient and effective enforcement of fisheries and boating safety laws, as well as related safety and surveillance. With over 160,000 recreational and 5,000 commercial vessels in use, compliance with laws is necessary to ensure both the safe use of waterways and the sustainability of fisheries resources. The QBFP is continually assessing and reviewing compliance techniques and technologies to maintain an effective deterrent while minimising disruption to fishers, vessel operators and the community. Vessel Monitoring Systems (VMS) have been introduced into the trawl fleet and are now integral to ensuring good compliance with fisheries laws.


Page 125

7 Enforcement and Compliance The Queensland Boating and Fisheries Patrol (QBFP) is responsible for ensuring compliance with fishery legislation in the ECOTF. Officers stationed between the NSW border and Thursday Island are involved in the fishery, with Port Douglas being the northern-most port from which trawlers operate and land their catch. Mother-ships also operate in far northern Qld waters and allow trawlers in areas remote from ports to off-load product and re-supply. NSW Fisheries officers assist with enforcement duties in the southern border area of Tweed Heads, where fishers depart from and return with product caught in Queensland waters. All compliance operations are coordinated through Regional Operations Managers based in Townsville and Brisbane. Shore-based officers conduct compliance inspections with trawl fishers at wharves and unloading facilities. Unattended product is inspected during transport to and from wholesale or retail outlets, live holding facilities and processing plants. Shore-based product inspections are supported by inspections at-sea of catching apparatus, bycatch reduction/exclusion devices installation and use. Long-range patrol vessels based in Cairns, Gladstone and Brisbane undertake surveillance of fishing activities in offshore areas, while areas closer inshore are managed by medium size craft stationed at District Offices between Port Douglas and the Gold Coast. Field inspections include the monitoring of logbooks, licences, possession limits on permitted species regulated by number (blue swimmer crabs and pipefish), size (e.g. saucer scallops blue swimmer crabs and bugs), volume (e.g. cuttlefish and octopus), and gender (e.g. female red spot crabs, ovigerous bugs and barking crayfish). Other inspections include compliance in accordance with the Trawl Plan for fishing gear, bycatch reduction/excluder devices, area of operation and daily reporting data accuracy of Vessel Monitoring System (VMS) equipment.

7.1 Compliance Levels Compliance levels in the fishery are generally high due to VMS tracking and high levels of enforcement activity during fishing periods. For example more than 350 inspections on fishers and processors were made in the five months between July and November 2001 (Table A2-3). Offences reported include fishing in closed waters and infringements related to lawful fishing aboard vessels targeting prawns or scallops. The job of protecting fisheries resources has been made easier through the provision of the 24-hour toll-free fishwatch hotline. Suspected illegal fishing activity can be reported directly to the QBFP from anywhere in the State at no cost.


Page 126

Table A2-3. Enforcement activities in the East Coast Trawl Fishery, July 2000 to November 2000

Total for November by operational area

% Compliance in November

Activity 1

North 2 South 3 Qld

Qld total (July to November)

North South Inspections

scallop 16 6 22 73 - - prawn 37 35 72 288 - -

Total 53 41 94 361 - - VMS offences 4 Total 5 7 12 56 - - Other offences

Scallop 5 1 6 14 69 83 Prawn 4 8 12 32 89 77

Total 9 9 18 46 83 78

1 Enforcement activities involving fishers and processors 2 North: Northern Operational Area = waters offshore from the GBRWHA, within the GBRWHA and

adjacent inshore and estuarine waters 3 South: Southern Operational Area = offshore, inshore and estuarine waters south of the GBRWHA 4 Mainly fishing in closed waters Note: This table includes otter and beam trawling and trawling in Moreton Bay


Page 127

Appendix 3 The Environment Likely to Be Affected by the Fishery The following description of the environment that the ECOTF operates in has been reproduced from Zeller (1998): Queensland’s Fisheries Habitats: Current Condition and Recent Trends. Unless otherwise indicated, references for specific information provided in this section can be found within that publication. The fishery lies off the entire Queensland east coast, in tidal waters bounded by the coordinates 10.5ºS and 28.5ºS Latitude and east of 142.5ºE Longitude but excluding estuaries and tidal waters of Moreton Bay between 27ºS and 28ºS Lat. and 153ºE and 153.5ºE Long. More than 60% of the total area of the fishery is in the Great Barrier Reef World Heritage Area (QFS 2000). The area of continental shelf occupied by the Great Barrier Reef (GBR) lies between 10ºS and 24ºS, is narrowest in the north off Cape Melville (24 km), widest in the south off Cape Townshend (290 km) and covers approximately 215,000 km2. The shelf is relatively flat inside the GBR, gradually increasing in depth toward the reefs of the outer shelf. In general the depth of the shelf increases from north to south:

• North of 16ºS the shelf lies in relatively shallow waters (depth <20 m);

• Between 16ºS and 21ºS on the coast and 20ºS at the shelf edge, waters are of intermediate depth (<55 m);

• Between 21ºS and 24ºS, the shelf generally lies in waters deeper than 55 m. The Great Barrier Reef is the world’s most extensive coral reef system, covering about 350,000 km2 off the north and central Queensland coastline. It extends 2,300 km, from 10° S, at the eastern edge of the Torres Strait, to about 24° S, at Lady Elliott Island (Figure A3-1). The reef tract follows an earlier coastline which was submerged by rising sea levels at the end of the last Ice Age (about 17,000 years ago). Maximum water depth of the seafloor generally increases from north to south. About 2,900 reefs lie within the GBR Region. They vary in area from less than 1 ha to more than 100 km2. There are about 300 coral cays and 600 continental islands, many with fringing reefs around their margins (e.g. Lizard Island, Magnetic Island and the Whitsunday and Keppel Island Groups). Trawling in the GBR region is predominantly over the softer sediments within the GBR lagoon lying between the Queensland coast and the western margin of the mid-shelf reef complex (GBRMPA 1998). Major commercial species, including tiger prawns, endeavour prawns and saucer scallops inhabit these waters, while habitats between the reefs and shoals are fished for red spot king prawns and coral prawns. Assemblages of epibenthic invertebrates are a significant element of the lagoon and inter-reef shoal habitats adjacent to the Far Northern Section of the GBR (Poiner et al. 1998). These assemblages are made up of a range of large sessile invertebrates (mainly sponges, gorgonians and soft and hard corals) supporting smaller invertebrates and fishes, and occur on patches of hard substrate raised slightly above the softer sediments of the surrounding seabed. There may be similar epibenthic communities elsewhere within the GBR region. The outer GBR is composed of a contiguous line of reefs near the edge of the continental shelf, at distances varying from 32 km from the coast near Cape Melville to


Page 128

260 km in the Swain Reefs off Mackay. The outer shelf reefs are strongly influenced by oceanic waters, whereas reefs closer to the mainland on the mid to inner shelf are more influenced by events occurring on land (e.g. contact with freshwater and sediments discharged by flooding rivers). The growth of reef-building corals is affected by the salinity, nutrients and turbidity of seawater, water depth and temperature (ideally above 20ºC). The temperature of seawater passing through the GBR is influenced by the strength and direction of the northward flowing Hiri Current and the southward flowing East Australian Current. Sediments of the shelf in the lagoon between the GBR and the mainland tend to be silty inshore, the result of the sediment deposition from rivers. Coarser calcium-rich sediments derived from coral, shells and calcareous algae dominant on the mid- to outer shelf. At the southern entrance to the Great Barrier Reef lagoon between the Swain Reefs and the Capricorn-Bunker Group of reefs there is a strip of gravel beds along the 180 m contour with deep water canyons and patches of hard substrate further offshore to the south-east. There are extensive deepwater trawling grounds outside the GBR in depths of 180-270 m between 18.6ºS (north-east of Townsville) to 20.9ºS (north of the Swain Reefs); outside the 155 m isobath (east of the Swain Reefs) and outside the 165 m isobath (east of the Capricorn-Bunker Group). Further south, commercial quantities of deepwater prawns and a range of fishes, crustaceans and cephalopods have been harvested from bottom trawls in deep waters of the continental slope between the Swain Reefs and Breaksea Spit north of Fraser Island. Sediments in this area consist of hard sand at shallower depths (160-210 m) and soft muddy ooze at greater depths (360-640 m). The sediments at depths of 210-260 m are generally not suited to trawling in this area (Mike Dredge, pers. comm.). There are also commercial quantities of deepwater prawns on the continental slope between Noosa and Point Danger, in an area interspersed with seabed canyons. There are extensive intertidal, shallow sub-tidal and deep water (> 10m) seagrass habitats throughout much of the fishery area, including the far northern and central GBR and Hervey Bay/Great Sandy Straits regions. In the Great Barrier Reef region, there is seagrass in estuaries, shallow coastal bays and inlets, on fringing and platform reefs and in inter-reef areas to depths greater than 60 m. Between Cape York and Hervey Bay there are about 5,000 km2 of seagrass. The coast of Cape York Peninsula alone supports 2,266 km2 of seagrass, with over 90% along the east coast. This includes large areas of deep water seagrasses (1,566 km2) between Barrow Point and Lookout Point. There are also extensive areas of deepwater seagrass in Hervey Bay. 1,026 km2 of seagrass (mainly Halophila species) were recorded here prior to a major flood that destroyed much of the seagrass. There has since been substantial recolonisation of this deep water seagrass (McKenzie et al 2000). There are approximately 267 km2 of seagrass in inshore and estuarine waters of southern Queensland. Seagrass depth range is limited by light availability — where water clarity is low, seagrass depth range is also low. All species found in the region can grow in shallow water, in mid depth ranges (6 to 11 m) pioneering Halophila and Halodule predominate, whilst Halophila species are the only seagrasses that can grow in the low light conditions of water more than 11 m deep.


Page 129

Figure A3.1. The Great Barrier Reef Queensland’s east coast commercial catch of tiger, endeavour and redspot king prawns for 2000 totalled almost 3,600 tonnes and was valued at more than $50 million (Williams 2002). Depending on the species, seagrass beds, trawl grounds and coral reef flats act as nurseries that provide shelter and food for juvenile prawns before recruitment to deepwater fishing grounds. While reef tops are unavailable to trawling,


Page 130

many seagrass areas are permanently closed to trawling to protect juvenile prawn stocks and to minimise physical disturbance. Environmental factors play an important role in determining patterns of abundance of prawns and scallops. Banana prawns are strongly associated with mangrove habitats and soft sediments found in shallow inshore waters and estuaries. In 2000, the commercial catch was 372 t shared between otter trawlers working shallow coastal waters and beam trawlers working estuaries and bays (Williams 2002). The banana prawn catch between years is highly variable and is strongly dependent upon coastal floods for the movement of high numbers of juvenile prawns from mangrove-lined creeks into estuarine inshore areas where they are targeted by the fishery. There are approximately 3,500 km2 of mangroves along the Queensland east coast (Christina de Vries, pers. comm.). In Queensland, mangroves, seagrasses and other marine plants are specifically protected under the Fisheries Act 1994 in recognition of their value to productive coastal fisheries. Marine plants stabilise sediments against erosion, support complex food webs providing shelter and/or food to a wide variety of fishery resources and species of high conservation status (e.g. sea turtles and dugong), and make nutrients available for plankton production in coastal waters. Sustainable seafood production from the ECOTF and other marine fisheries is closely linked to an on-going commitment by the Queensland Government to protect and enhance marine plants and all fishery habitats in the State’s coastal zone (Beumer and Couchman 2002).


Page 131

Appendix 4 Review events under the Trawl Plan S.227 General Fishing Effort Review

1) Before 2004, the chief executive must review this plan to decide whether fishing effort in the fishery is ecologically sustainable.

2) If the review shows fishing effort in the fishery is not ecologically sustainable, the chief executive must amend this plan before 2006 to reduce fishing effort to –

a. Achieve ecological sustainability of the fishery: and b. Reduce the fishery’s impact on the environment.

S.229 General Review

1) The chief executive must review this plan to decide whether its provisions remain appropriate. 2) The review must start not before 5 years, but no more than 7 years, after the notification day

(ie. 19 November 1999). Table A4-1 Review Events and Data Sources for Indicators Currently Required Under Schedule 2 of the Trawl Plan

Review Event Data Source(s)

Part 1 Managing the fishery in a way that gives optimal but sustainable community benefit.

4(a) surveys, accepted by the chief executive, or fishing for fisheries resources taken in the fishery by commercial and recreational fishers and Aborigines and Torres Strait Islanders shows a significant decline in the catch of principal species, or

CFISH

4(b) data from commercial fishing catch and effort data for the fishery received by the chief executive shows a significant decline in the commercial catch of principal species.

CFISH

Part 2 Ensuring fisheries resources taken in the fishery are taken in an ecologically sustainable way

8(a) CPUE for the following principal species in the following period is less than 70% of the average CPUE for the principal

species from 1988 to 1997- 1. For bay prawns (greasy prawns) – 1 November to the end of February 2. For eastern king prawns - 1 November to the last day of February or

May 1 to 31 August; 3. For Moreton Bay bugs – 1 November to the last day of February or 1

May to 31 October 4. For red spot king prawns - I June to 30 September 5. For saucer scallops – 1 November to the end of February 6. For tiger prawns – 1 March to 30 June or 1 September to 31 December. NOTE: Biological reference points and review triggers have not been defined for squid or any permitted species under the Plan.

CFISH CFISH

CFISH

CFISH CFISH CFISH

8(b) the chief executive accepts a study of catch and effort data that shows a significant decline in a principal species

CFISH

8(c) the chief executive accepts a scientific study that shows a significant decline in the abundance of a principal species.

CFISH

8(d) More than 5% of boats in the fishery in 2000 or a subsequent year are used to commit an offence under this plan.

QBFP, Licensing database


Page 132

Review Event Data Source(s)

8(e ) the number of effort units has not decreased by- 13% or more in the first effort year; or 1% or more in any subsequent effort year; or 2% or more during 2 consecutive effort years for any licence;

CFISH / Licensing database

8 (f) the chief executive accepts a study or survey that shows- a significant change in the relative distribution of boat hull units in the fishery; or average main engine power for boats in the fishery is increasing.

CFISH / Licensing database

Part 3 Ensuring the sustainability of the fishery’s ecological systems

12 (a) a scientific study, accepted by the chief executive, shows the amount for any of the following is not, by 1 January 2005, reduced by the following percentage compared with an amount reported in a scientific study before this section commenced-

• Benthos – 25% • The incidental catch of fish other than principal species – 40%

Research projects

12(b) more than 5%*** of boats in the fishery in 2000 or a subsequent year are used to commit an offence under this plan

QBFP, Licensing database

12(c ) turtle capture or mortality in trawling operations is in any year more than 5% of the turtle capture or mortality recorded for 1995

CFISH (OT07 logbooks)

12 (e) the chief executive receives a logbook return from the fishery that shows trawling has happened in an area represented on a grid stated in the logbook where trawling has not previously been recorded in a logbook return.

CFISH (OT07 logbooks)

Part 4 Providing an economically viable, but ecologically sustainable, trawl fishery

16(a) the number of effort units used significantly declines below the number of units that would, had this plan been in force, have been issued and used at the end of 1996

CFISH

16(b) the chief executive accepts an economic study that shows the value of effort units has not increased by 1 January 2003

External Study

16(c ) a significant number of commercial fishers consistently can not obtain effort units by transfer

External Study

16(d) the chief executive accepts an economic study of the fishery that shows a significant decline in the fishery’s economic efficiency.

RC&T, External Study

Part 5 Ensuring fair access to fisheries resources on a sustainable basis.

20(a) the number of effort units for the fishery on 1 January 2004 is more than the number of effort units that would, had this plan been in force, have been issued at the end of 1996; or

CFISH

20(b) a survey, accepted by the chief executive, of fishing for fisheries resources taken in the fishery by commercial and recreational fishers and Aborigines and Torres Strait Islanders shows a significant decline in the catch of principal species.; or

CFISH

20(c) commercial fishing catch and effort data for the fishery received by the chief executive shows a significant decline in the commercial catch of principal species.

CFISH


Page 133

CFISH = Commercial Fishing Information System QBFP = Qld Boating and Fisheries Patrol RC&T = QFS Resource Condition and Trend Reporting (eg Williams 2002) Table A5-1 East Coast Trawl Fishery Logbook (OT07)

Skippers Signature Master Fishers Number Please Tick: OTTER TRAWL ! or BEAM TRAWL ! Log Book No

BOOKS MUST BE FILLED IN AT THE END OF EACH DAY AND ARE TO BE RETURNED TO THE LOGBOOK SECTION WITHIN 15 DAYS OF THE END OF EACH

IF NOT TRAWL FISHING FOR AN EXTENDED PERIOD PLEASE SPECIFY …./…./….. to …./…./…. BOAT ACTIVITY CODE ……..

AINED

THER SPECIES MAY BE RETAINED BY TRAWL OTHER THAN THOSE SPECIFIED Other Prawns Scallops Bugs Shark

Ende

avou

r Pra

wns

(kilo

s)

Ban

ana

Praw

ns (k

ilos)

Gre

asy

(G);

Bay

(B);

Cor

al

(C);

Scho

ol (S

); O

ther

(O)

Wei

ght (

kilo

s)

Man

tis S

hrim

p (k

ilos)

Num

ber b

aske

ts

Sauc

er !

Mud

! O

ther

!

Dis

card

ed S

callo

ps

(Num

ber B

aske

ts)

Bal

mai

n (B

);

Sand

/Mud

(M)

Wei

ght (

kilo

s)

Bar

king

Cra

yfis

h (k

ilos)

Blu

e Sw

imm

er C

rabs

(k

ilos)

Thre

e Sp

ot (r

ed sp

ot) C

rabs

(k

ilos)

Squi

d (k

ilos)

Oct

opus

(kilo

s)

Cut

tlefis

h (k

ilos)

Seah

orse

s/Pi

pefis

hes

(num

ber)

Win

ter W

hitin

g (k

ilos)

Whi

ptai

ls (k

ilos)

Pink

ies (

kilo

s)

Goa

t Fis

h (k

ilos)

Wei

ght (

kilo

s)

Prod

uct F

orm

(who

le;

fille

t;fin

stru

nks)

TED type Hard Soft Other. Description………………………………………….

Bar Spacing …………………………………………………

BRD type Square mesh cod ends Sections of squ Mesh extension (pieces attached to a net betwee Slits built into a net Metal escape w Other. Description………………………………


Page 134

PERMITTED SPECIES The management plan defines permitted species as those that may be taken and possessed by trawling. All other species must be returned to the water. The management plan also defines principal species taken by trawlers. Principal species are also permitted species. The following is a list the permitted species. The principal species taken in the fishery are:

Prawns Scallops Bugs Squid Other permitted species taken are: Barking crays (Champagne lobster) Balmain bugs Cuttlefish Mantis shrimp Octopus Three spot crab (Red spot Crab) Sharks (Flake) Pinkies Whiptails Goatfish (Red Mullet) Winter whiting (Diver whiting) Syngnathids (Seahorses/Pipehorses/Pipefishes) Blue swimmer crab (100 in Moreton Bay and 600 outside Moreton Bay)

SPECIES IDENTIFICATION (*Pictures sourced from: Sainsbury KJ, Kailola PJ and Leyland GG, 1984. Fishes of Northern and North-Western Australia. CSIRO Division of Fisheries Research Publication, Canberra, Australia) WHIPTAILS (Reference: Grant’s Guide to Fishes 1993. Page 374-375.) Distinguished by a threadlike filament on the upper lobe of the tail. Colour is bluish with yellow streaks.

PINKIES (Reference: Grant’s Guide to Fishes 1993. Page 372-373.) A number of species fall into this group. Colour is pinkish with yellow streaks.

GOATFISH (Red Mullet) (Reference: Grant’s Guide to Fishes 1993. Page 426-429.) Easily distinguished by whiskers attached to the lower jaw.

*These pictures are indicative only.


Page 135

INSTRUCTIONS FOR USE THE LOG MUST BE COMPLETED ON A DAILY BASIS This logbook is only to be used while participating in the trawl fishery. If participating in another fishery at any time, you must use the logbook specific to that fishery. All days during the year must be accounted for in one QFMA fishery logbook. This logbook is designed to collect information for management and research. This logbook does not require carbon paper. The foldout writing template must be placed under the white page when you are filling in the logsheet to prevent accidental marks on the next set of forms. You may find the instructions on the template useful when completing each day’s entry. The pink pages are perforated across the top so that they can be torn out, placed in the prepaid envelopes and mailed monthly. The white duplicate page is designed to remain in the logbook for your use. There is space available on this sheet where you can write useful private information. Logsheets are to be sent to: QFMA LOGBOOK SECTION PO BOX 227 BNE ROMA STREET QLD 4003 Logsheets must be forwarded so as to reach the QFMA not later than 15 days after the end of the month to which it relates. Should you have any enquiries about the Logbook Program or about using the logbook please phone on (07) 3227 6299. GEAR DESCRIPTION FORM To be completed and sent in when you received each logbook. There have been 3 main changes to the Gear Description Form from the OT06 logbooks. 1. There is now a section to fill in the date you received the new logbook; 2. There is a section in which to record the type of TED you have fitted to your nets;

and 3. There is a section in which to record the type of BRD you have fitted to your nets. It is important that you complete the Gear Description Form and return it when you receive each logbook as the information we receive about TED’s and BRD’s can help us to determine which designs are most effective. A reply paid envelope has been included for the return of this form. FILLING IN THE LOG FORM Catch and effort data can be reported either daily or shot by shot. Shot by shot data provides us with more detail, which is useful in assessing the status of the fishery on a localised scale, however we understand that it is not always possible to report at this


Page 136

level. Depending on how catch and effort is reported, the logsheet is to be filled in as follows: 1. Reporting shot by shot data – sixteen shots to a page.

When using the logsheet to report shot by shot information, use one line for each trawl shot. Please make sure to complete both Time Shot Away and Total Shot Time columns for every shot. You may record catch and effort for more than one night on each page. See example 2 on the foldout.

2. Reporting total daily catch and effort data - sixteen nights to a page. When using the log sheet for multiple fishing days please make sure to fill in the Total Hours Trawled Column. See example 1 on the foldout.

POSITION REPORTING Please provide your position for the greatest catch daily. This is to be given either as: 1. 30 minute GRID and 6 minute SITE (using the charts in the front of the book) or as 2. latitude and longitude. Please let us know if your readout is in decimal minutes. TAG RECOVERIES If you catch any tagged animals, please check the tag and either notify the appropriate agency, or record the tag details in the comments section of your logbook. LOGBOOK REQUIREMENTS Under the Fisheries Act 1994 Section 118 it is compulsory that this logbook shall be completed by all vessels licensed to operate in the Queensland East Coast Otter Trawl Fishery. The information collected through the logbook program is used for management and research purposes. This new logbook has been designed to reflect the broader information requirements needed under the East Coast Trawl Management Plan 1999. Particular attention has been given to the recording of permitted species, other than principal species to facilitate the review of the Fishery. Operators are urged to provide as much detail as possible in their logbooks so that future decisions on the fishery can be made based on sound information. The Master Fisherman in charge of the vessel for and on behalf of the licence holder and/or the holder of the Commercial Fishing Vessel Licence shall provide information for each fishing day or submit a ‘nil’ return if no fishing activities occurred for any particular month. The original page should be kept as evidence of completion in case of loss of carbon copies.


Page 138

*Turtle identification chart and Turtle recovery procedures sourced from QCFO/DPI joint publication: Code of Fishing Ethics: The Capture of Sea Turtles.


Page 1 29/11/2002


Page 2 29/11/2002

a report to environment australia on sustainable ... · figure a2-2 areas permanently closed to...

Documents