afma submission – environment protection and … · web viewthe term ranching is the preferred...

AFMA Submission – Environment Protection and Biodiversity Conservation Act 1999Reassessment Southern Bluefin Tuna FisheryJuly 2019

This report has been prepared by AFMA for consideration by the Department of Environment and Energy in relation to the export approval of the Southern Bluefin Tuna Fishery under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act).

Securing Australia’s Fishing Future AFMA.GOV.AU 1

Contents

Contents...........................................................................................................................2Introduction......................................................................................................................41. Description of the Fishery..........................................................................................5

1.1 Species biology....................................................................................................................81.2 Target and by-product species.............................................................................................91.3 Management arrangements..................................................................................................91.4 International context...........................................................................................................111.5 Fishing methods................................................................................................................. 131.6 Fishing areas...................................................................................................................... 141.7 Allocation between sectors.................................................................................................161.8 Governing legislation/fishing authority................................................................................161.9 Status of export approval under the Environment Protection and Biodiversity Conservation Act 1999................................................................................................................................... 16

2. Socio-economic environment..................................................................................162.1 Value of the fishery.............................................................................................................162.2 Economic assessment........................................................................................................162.3 Quality assurance and control............................................................................................17

3. Management...............................................................................................................173.1 Changes to management...................................................................................................173.2 Performance of the fishery against objectives, performance indicators and performance measures.................................................................................................................................. 173.3 Compliance risks present in the fishery and actions taken to reduce these risks...............173.4 Consultation processes......................................................................................................193.5 Description of cross-jurisdictional management arrangements..........................................203.6 Compliance with threat abatement plans, recovery plans and domestic and international agreements............................................................................................................................... 20

4. Research and monitoring.........................................................................................204.1 Research............................................................................................................................ 204.2 Monitoring programs used to gather information on the fishery..........................................204.3 Observer program...............................................................................................................23

5. Catch data...................................................................................................................245.1 Total catch of target species (Southern Bluefin Tuna)........................................................245.2 Take of SBT in other fisheries............................................................................................255.3 Total catch of byproduct and bycatch species....................................................................255.4 Catch by other sectors........................................................................................................255.5 Spatial issues/trends...........................................................................................................27

6. Status of target stock................................................................................................276.1 Stock status........................................................................................................................ 276.2 Stock assessments and recovery strategies.......................................................................29

7. Interactions with protected species.........................................................................297.1 Frequency and nature of interactions.................................................................................297.2 Management action taken to reduce interactions...............................................................30

8. Impacts of the fishery on the ecosystem................................................................318.1 Results of the Ecological Risk Assessments......................................................................318.2 Nature of impacts on the ecosystem...................................................................................338.3 Management action taken to reduce impacts.....................................................................338.4 Ecological Risk Assessment and Management Review.....................................................34


9. Progress in implementation of recommendations and conditions resulting from the previous assessment of the fishery......................................................................3410. Attachments.............................................................................................................35

Attachment A - Conditions on the approved Wildlife Trade Operation, December 2016..........35Attachment B – Level 2 SBT Fishery Ecological Risk Assessment..........................................35Attachment C – SBT Fishery Residual Risk Assessment.........................................................35Attachment D – SBT Fishery Level Three Rapid Qualitative Risk Assessment........................35Attachment E – SBT Fishery Ecological Risk Management strategy........................................35


IntroductionThis assessment covers fishing in the Southern Bluefin Tuna Fishery (the SBT fishery) for all methods permitted under the Southern Bluefin Tuna Fishery Management Plan 1995.

The SBT Fishery was originally declared an approved Wildlife Trade Operation (WTO) under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) on 10 November 2004.

Since then, the SBT fishery has been re-approved under the EPBC Act four times with the current WTO accreditation valid until 13 December 2019.

A copy of the letter to AFMA, including conditions and recommendations can be found at:

http://www.environment.gov.au/marine/fisheries/commonwealth/southern-bluefin


http://www.environment.gov.au/marine/fisheries/commonwealth/southern-bluefin

1. Description of the FisheryA full description of the Southern Bluefin Tuna Fishery is provided in the table below.

Principal Species:

Southern Bluefin Tuna (Thunnus maccoyii)

No of SFR Owners at start of the SBT fishing Season

2016/17: 85

2017/18: 84

2018/19: 81

Estimated catch (fishing season) and value (financial year)

2016/17 TAC : 5665 tonnesCatch : 5334 tonnesGVP: $38.5 millionFarm gate value: $123 million

2017/18 TAC : 6165 tonnesCatch: 6,159 tonnesGVP: $32.63 millionFarm gate value: N/A

2018/19 TAC: 6165 tonnesCatch: NAGVP: N/AFarm gate value: N/A

Fishing Season:

The SBT fishing season runs from 1 December to 30 November in the following year.

The majority of fishing by purse seine for grow out ranching1 occurs from December – March. Longlining for SBT occurs primarily in winter months off southern NSW by boats operating concurrently in the Eastern Tuna and Billfish Fishery.

Main markets:

Japan. Small markets in China, USA, EU and Republic of Korea.

Fishing techniques:

In 2017-18 approximately eighty four per cent of the Australian catch of SBT was taken by purse seine off SA for ranch operations. These are towed alive back to static grow out pontoons off Port Lincoln and grown out for up to 6 months before being harvested and exported, predominantly to Japan. SBT is also caught by longline vessels operating in southern Australian waters. They are also taken in small amounts by pole and line, and trolling.

Stock Status:

The 2017 assessment suggested that the stock remains at a low state, estimated to be 13% (11-17 80% P.I.) of the initial spawning stock biomass, and below the level to produce maximum sustainable yield (MSY). There has been improvement since previous stock assessments which indicated the stock was at 5% (3-8%) of original biomass in 2011 and 9% (7- 12%) in 2014. There are positive estimates of earlier rebuilding of the stock than anticipated in 2011, because fishing mortality rate estimates are below the level associated with

1 The term ranching is the preferred terminology for the grow out sector in South Australia however, the word farm is used where legislated documents are described.


MSY.

A review of indicators did not suggest a need to change conclusions from those drawn in the 2017 stock assessment. Overall, there is a low trolling (piston-line) index of age 1 in 2018, mixed signals of higher recruitment in recent years, and there are some consistent positive trends in the age-based longline CPUE estimates. There may be several relatively strong cohorts moving through the fishery, although these have yet to contribute to the spawning stock. The Commission for the Conservation of Southern Bluefin Tuna Scientific Committee noted that increased recruitment is not necessarily indicative of increased spawning stock biomass. It was also noted that it will take a few more years before there is sufficient data to confirm the recent apparent strong recruitments evident in the aerial survey.

ABARES produces annual status reports for Commonwealth fisheries based on Australian and regional data and stock assessments. The latest stock status for the southern bluefin tuna fishery is below.

Management Plan:

The Southern Bluefin Tuna Management Plan 1995 (the SBT Plan) is the instrument through which Australia implements the resolutions of the Commission for the Conservation of Southern Bluefin Tuna in the domestic fishery.

No changes to the SBT Plan have been made since 2013.

Management Method:

The Southern Bluefin Tuna Fishery is managed through a system of output controls in the form of individually transferrable quotas which are allocated as Statutory Fishing Rights (SFRs) under the SBT Plan. Prior to the commencement of each season (1 December to 30 November), AFMA determines a TAC of SBT for the domestic fishery based upon Australia’s national allocation from the Commission for the Conservation of Southern Bluefin Tuna. Each SFR entitles the holder to receive an equal portion of the TAC set by AFMA for this period.

International Management:

Australia is a member of the Commission for the Conservation of Southern Bluefin Tuna, which is responsible for the international management of the global SBT stock. The objectives of the commission are to ensure through appropriate management, the conservation and optimum utilisation of the global SBT fishery. Management arrangements agreed at the commission are implemented in the domestic fishery through the SBT Plan and


associated legislative instruments.

Member countries are engaged in a Scientific Research Program (SRP). The core components of the SRP are catch characterisation, CPUE standardisation, scientific observers, tagging and recruitment monitoring.

At the Eighteenth Annual Extended Commission Meeting in 2011, a Management Procedure was adopted that outlines a rebuilding strategy for the SBT stock. The Management Procedure will be used to guide the setting of the SBT global TAC for 2012 and beyond, according to the following parameters:

The Management Procedure is tuned to a 70% probability of rebuilding the stock to the interim rebuilding target reference point of 20% of the original spawning stock biomass by 2035;

The minimum TAC change (increase or decrease) is 100 tonnes; The maximum TAC change (increase or decrease) is 3,000 tonnes; and The TAC will be set for three-year periods, subject to paragraph 7 of the

Resolution on Adoption of a Management Procedure (PDF 33Kb).

The Commission for the Conservation of Southern Bluefin Tuna has decided to develop a new MP to guide the setting of TACs for 2021 and onwards. The new MP will take into account changes in data availability, in particular, changing the recruitment monitoring series from an aerial survey of juveniles to a juvenile gene tag/recapture program.

Based on the outcome of the Management Procedure, Australia’s national allocation for the 2018/19 season was 6,165 tonnes out of a global TAC of 17,647 tonnes.

A summary of Australia’s most recent catch against quota for the last three seasons is listed below:

Fishing Season Total Allowable Catch (t)

Catch (t)

2015/16 5,665 5,6352016/17 5,665 5,3342017/18 6,165 6,159

Ecological Risk Management

The Ecological Risk Management (ERM) strategy for the SBT fishery outlines management measures to monitor and mitigate risk to all aspects of the marine ecosystem.

The ERM strategy has been developed through the Ecological Risk Management Framework that involves a hierarchical ecological risk assessment (ERA) process. This process progresses from a comprehensive but largely qualitative analysis at Level 1, to a full quantitative analysis at Level 3. Results of the full ERA analysis identified no species at high risk in the SBT fishery. The priority for the ERM strategy is to maintain monitoring of the fishery and respond to any interactions with protected species that occur. Further details of the ERM framework are included in section 8.

A separate bycatch and discards work plan has been developed under the ETBF ERM strategy for all Australian pelagic longline fisheries, which includes mitigation measures relevant to longlining for SBT.

AFMA is currently in the process of reviewing ERAs across a number of its fisheries. CSIRO has been contracted to review the ERA for the SBT fishery


http://www.ccsbt.org/userfiles/file/docs_english/operational_resolutions/Resolution_Management_Procedure.pdf

commencing in late 2019.

Upcoming Major Management Issues:

Management Procedure (MP)

The Commission for the Conservation of Southern Bluefin Tuna has decided to develop a new MP to guide the setting of TACs for 2021 and onwards. The new MP will take into account changes in data availability, in particular, changing the recruitment monitoring series from an aerial survey of juveniles to a juvenile gene tag/recapture program. In 2018 a number of candidate MPs were developed by members, these will be refined in late 2019 with the aim to agree a new MP in 2020.

All sources of mortality

In 2014 members of the Commission for the Conservation of Southern Bluefin Tuna, including Australia, committed to begin to account for all sources of mortality in national fishing allocations by 2018, including recreational catch.

At the 24th annual meeting in October 2017, Australia expressed its commitment to ensuring the long term sustainability of SBT and to meeting its international obligations under the Convention. At this meeting, Australia committed to:

set aside 250 tonnes each year from within our 2018-2020 allocations to account for recreational catch;

settle a memorandum of understanding with the states to agree on nationally consistent management arrangements;

implement an education program to increase stewardship within the SBT recreational fishing community; and

undertake a national survey of recreational SBT catch in Australia to better inform management options.

In October 2018 the AFMA Commission set the domestic TAC at 6,165 tonnes for both the 2018/19 and 2019/20 fishing seasons. In setting the TAC AFMA took into account industry’s agreement to a number of conditions, including their commitment to undertake a set aside of 250 tonnes to account for all sources of mortality including recreational catch within Australia’s national allocation for the two seasons.

In making the decision to set aside the 250 t for the next two fishing seasons the AFMA Commission noted that a number of projects (including the Department of Agriculture funded national survey of SBT fishers) were expected to be completed in the coming years and that these outcomes would help inform the discussion around a formalised resource sharing agreement for SBT.

1.1 Species biologySouthern Bluefin Tuna (Thunnus maccoyii) are found in the southern hemisphere, mainly in waters between 30° and 50° S, but only rarely in the eastern Pacific. The only known spawning area is in the Indian Ocean, south-east of Java, Indonesia. Spawning takes place from September to April in warm waters south of Java and juvenile SBT migrate south down the west coast of Australia. During the summer months (December-


April), they tend to congregate near the surface in the coastal waters off the southern coast of Australia and spend their winters in deeper, temperate oceanic waters. Results from recaptured conventional and archival tags show that young SBT migrate seasonally between the south coast of Australia and the central Indian Ocean. After age 5 SBT are seldom found in near shore surface waters, and their distribution extends over the southern circumpolar area throughout the Pacific, Indian and Atlantic Oceans.

SBT can attain a length of over 2m and a weight of over 200kg. Direct ageing using otoliths indicates that a significant number of fish larger than 160cm are older than 25 years, and the maximum age obtained from otolith readings has been 42 years. Analysis of tag returns and otoliths indicate that, in comparison with the 1960s, growth rate has increased since about 1980 as the stock has been reduced. There is some uncertainty about the size and age when SBT mature, but available data indicate that SBT do not mature younger than 8 years (155cm fork length), and perhaps as old as 15 years. SBT exhibit age-specific natural mortality, with natural mortality being higher for young fish and lower for old fish, increasing again prior to senescence. Given that SBT have only one known spawning ground, and that no morphological differences have been found between fish from different areas, SBT are considered to constitute a single stock for management purposes.

1.2 Target and by-product speciesThe Southern Bluefin Tuna Management Plan 1995 establishes a framework for management of Australia’s domestic Southern Bluefin Tuna fishery.

The SBT Plan does not allow for the take of any species other than SBT. If an SBT SFR holder incidentally captures another species when fishing for SBT, they must hold the relevant concession that permits the take of that species.

1.3 Management arrangementsThe SBT fishery is managed under the Fisheries Management Act 1991 and the Southern Bluefin Tuna Fishery Management Plan 1995. These legislative instruments have a supporting framework of regulations, SFR conditions, fishing permits and directions.

The Southern Bluefin Tuna Fishery Management Plan 1995 outlines provisions for output controls in the form of individually transferable quotas which are allocated as statutory fishing rights (SFRs). Prior to the commencement of each season (1 December to 30 November) AFMA determines a total allowable catch (TAC) of SBT for the domestic fishery based upon Australia’s national allocation from the CCSBT. Each SFR entitles the holder to receive an equal portion of the TAC set by AFMA for this period.

Operators’ catch against their quota holdings is monitored through logbooks and catch disposal documents and a paper trail of fish receivers. These records are provided to AFMA within legislative timeframes to enable AFMA to monitor catch against quota holdings.


The current management mechanisms within the Plan and supporting legislative instruments are summarised in the following table.

Management Plan Supporting instrumentsSouthern Bluefin Fishery Management Plan 1995 Objectives Bycatch Action Plan requirements Reference points Applicability SFRs and entitlement to fish in the fishery Take in excess of quota Overcatch provisions Entitlements for fishing by a foreign boat, for

research purposes and for species other than SBT

Maximum number of SFRs Conditions for registration of eligibility for SFR

rights Granting of SFRs Determination of national catch allocation and

provisional catch allocation Determination of actual live weight, interim live

weight and provisional live weight value of SFRs

Overcatch circumstances and breaches Details of SBT taken to be sent to AFMA Verified count of fish taken by purse seine Live release of fish Restricted overcatch Verified count substitution Signed extract of the Register of SFRs Obligations on holders of SFRs

-Comply with other plans of management where concessions are also held under other plans

-Carry onboard a signed extract of the register -Cannot fish under the SBT Plan if operating a

charter trip-Provide biological, economic and technical data

if required to do so-Report all unloads of SBT outside of Australia-Notify AFMA if fishing on the high seas-Abide by restrictions on transhipment of dead

SBT (specified in the SBT Plan)-Must comply with all applicable legislative

instruments (specified in the SBT Plan)-Take all reasonable measures to minimise

bycatch Obligations of permit holders and foreign

holders of foreign fishing licenses Expiry of an SFR

Fisheries Management Regulations 2019 Application of the Act to the high seas Administration of Fisheries Concessions Standard conditions for fishing concessions

o Eligible boatso Requirement to have VMSo Requirement to carry observers o Disposal of fish to fish receivero Catch limits (where relevant) o Impacts on the marine environmento Reporting interactions with protected

organisms if injured or killed• Conversion of processed weight to live weightDeterminations Determination of Form and Content of Fisheries

Logbook for the Southern Bluefin Tuna Fishery Southern Bluefin Tuna Australia’s National Catch

Allocation Determination Southern Bluefin Tuna Overcatch and

Undercatch Determination Southern Bluefin Tuna Fishery Transfer

Weighing determination Southern Bluefin Tuna Fishery Actual Live

Weight Value of a Statutory Fishing Right Determination

Directions None

Conditions of SFRs and permitsQuota SFR Conditions Area of waters and area limitation Critical incidents notification for tow cages Comply with the procedure for taking SBT for the

weight sample Comply with the measures in Schedule 3a of the

Fisheries Management Regulations 2009. Emergency contact requirements Agent obligations Temporary order obligations Direction obligations Navigating in closed zones Handling and treatment of bycatch Recreational fishing Retention and discardingCarrier Permit Conditions Area of waters and area limitation


Document onboard obligation Purposes limitations Gear limitations Reporting obligations Critical incidents notification for tow cages Comply with the measures in Schedule 3a of the

Fisheries Management Regulations 2009. Agent obligations Temporary order obligations Handling and treatment of bycatch

Table1. The structure of the SBT Fishery Management Plan and supporting legislative instruments

1.4 International contextSBT is a highly migratory species fished throughout its range. Japan, Australia, New Zealand, the Republic of Korea, the Fishing Entity of Taiwan, South Africa and Indonesia account for the large majority of the catch.

In the mid-1980s it was apparent that the SBT stock was at risk and management and conservation was required. From 1985 the three main nations fishing for SBT; Japan, Australia and New Zealand, began to apply quotas as a management and conservation measure. In 1994, these voluntary arrangements were formalised with the signing of the Convention for the Conservation of Southern Bluefin Tuna (the Convention). Since then the Commission for the Conservation of Southern Bluefin Tuna (CCSBT) has managed the fish stock internationally. Australia is a founding member of the CCSBT and is active in this Regional Fishery Management Organisation (RFMO). Australia’s international obligations under the Convention are implemented through the Southern Bluefin Tuna Management Plan 1995.

The Convention’s objective is to ensure, through appropriate management, the conservation and optimum utilisation of the global SBT Fishery. In pursuit of this objective, the CCSBT:

is responsible for setting a global TAC and methods for allocation among the members;

considers regulatory measures to meet the Convention objectives; coordinates a Scientific Research Program (SRP) aimed at providing information

to support the CCSBT's management objectives (the program is a mixture of member managed activities, and activities managed directly by the CCSBT Secretariat);

makes decisions to support and implement fishery management; provides a forum for the discussion of issues relevant to the conservation

objectives of the Convention; acts as a coordination mechanism for members’ activities in relation to the SBT

Fishery; fosters activities directed towards the conservation of ecologically related species

(living marine species which are associated with the SBT Fishery) and bycatch species;

encourages non-members engaged in the fishery to join or participate as observers in Commission activities; and


cooperates and liaises with other Regional Tuna Fishery Management Organisations in areas of mutual interest.

When the Convention came into force in May 1994, CCSBT set a TAC of 11,750 tonnes, with national allocations of 6,065 tonnes, 5,265 tonnes and 420 tonnes to Japan, Australia and New Zealand respectively. For the period 1997 to 2003, there was an inability within the CCSBT to agree on a TAC or national quotas and in the absence of a decision by CCSBT to set a TAC, Australia and New Zealand maintained their catches at the pre-agreed levels. However, Japan sought a quota increase, either as an additional commercial catch, or an ‘experimental fishing program’ (EFP), or a combination of these.

Australia and New Zealand opposed any increase, and no agreement was reached despite numerous and extensive meetings.

In 1998, Japan undertook an EFP without CCSBT endorsement, and increased its total catch to 7,052 tonnes. In 1999, Japan again proceeded unilaterally to increase its quota through an EFP, and increased its total catch to 7,552 tonnes. Australia and New Zealand took legal action against Japan through the international legal system including the International Tribunal on the Law of the Sea (ITLOS), on this issue.

The Republic of Korea became a member in 2001, and in 2002 Taiwan became a member of an Extended Commission (as the Fishing Entity of Taiwan).

In September 2005, Australia formally raised concerns about information suggesting that sales of SBT in Japanese markets over many years had far exceeded those expected from the reported global catch. At the Commission meeting later that year, the CCSBT agreed to undertake an independent review of the Japanese market data. By July 2006 it was clear that there had been significant levels of unreported catch over at least 20 years. Estimates of the total amount of unreported catch were as high as 178,000 tonnes2. In October 2006, the CCSBT reduced the global international TAC for participating nations of the Commission to 11,500 tonnes per annum. The CCSBT agreed to cut Japan’s national allocation to 3,000 tonnes (previously 6,065 tonnes) for five years (2007-2011). The TAC reduction was aimed at stabilising the SBT stock while a new stock assessment taking account of the overcatch and related uncertainties was undertaken.

Indonesia, a significant catching nation and as noted below the location of the only known SBT spawning grounds, became a full member of the Extended Commission on 8 April 2008.

In October 2009, the CCSBT reduced the global TAC for each of the 2010 and 2011 fishing seasons to 9,449 tonnes. In addition to the reduced TAC, the CCSBT decided that it would work toward implementing a Management Procedure in 2011 and that the Management Procedure would be the basis for TAC setting in 2012 and beyond.

A Management Procedure was agreed at the 2011 meeting of the Extended Commission and was used to establish global TACs for 2012 and 2013, with a preliminary TAC for 2014 agreed subject to review of updated data by the Scientific Committee in 2013. The Management Procedure outlines a rebuilding strategy for the SBT stock according to the following parameters:

The management procedure is tuned to a 70% probability of rebuilding the stock to the interim rebuilding target reference point of 20% of the original spawning stock biomass by 2035;

2


The minimum TAC change (increase or decrease) is 100 tonnes; The maximum TAC change (increase or decrease) is 3,000 tonnes; and The TAC will be set for three-year periods, subject to paragraph 7 of the

Resolution on Adoption of a Management Procedure.

1.5 Fishing methodsAustralian operators predominantly use purse seine nets to target surface schools of SBT. Fish are often located with fish-spotting aircraft, or from a crow’s nest aboard a purse seine or pole vessel. At times, support vessels assist in maintaining schools at the surface while the purse seiner sets its net around the school. Because specific schools of fish are targeted, the purse seine method is generally size and species selective. Minimal habitat impacts occur during tuna purse seine operations, as contact with the substrate is very rare.

A purse seine operation begins by shooting the bunt end of the net from the stern of the vessel, either by attaching a large dan buoy or by using a skiff (Figure 1). The vessel then

Figure 1: Purse seine method

encircles the school of fish and recovers the first end of the net. The purse line that runs through purse rings attached to the footrope of the net is winched in, enclosing the bottom of the net. A proportion of the net is hauled back onto the vessel with the use of a power block to concentrate the fish into a smaller area beside the vessel. The fish are then transferred to an adjacent towing pontoon which is subsequently towed back to the sea pontoons off Port Lincoln (Figure 2). These SBT are then grown out and harvested, largely for the sashimi tuna market in Japan. The majority of Australia’s total catch of SBT is taken by purse seiners operating in conjunction with the SBT ranching sector.


https://www.ccsbt.org/en/content/management-procedure

Figure 2. Ranching process

SBT are also targeted or taken incidentally by pelagic longline vessels operating in the Eastern and Western Tuna and Billfish Fisheries. The catch taken by the pelagic longline sector varies from year to year, although has been an increasing component of the catch in recent years.

1.6 Fishing areasThe Australian SBT Fishery encompasses SBT fishing operations inside the Australian Fishing Zone (AFZ) (i.e. out to 200 nautical miles around Australia) and on the high seas. An Offshore Constitutional Settlement (OCS) agreement has been reached, which gives AFMA jurisdictional management over SBT in all waters inside the AFZ except in New South Wales State waters. In New South Wales, the State Government has banned the commercial take of SBT inside three nautical miles. Each State has jurisdictional management over the recreational take of SBT. State management measures include bag and size limits.

In 2017-18 approximately eighty three per cent of the Australian catch of SBT was taken by purse seine off SA for ranching operations in Port Lincoln. The remainder of the catch is either targeted or taken incidentally by pelagic longline vessels operating in the Eastern Tuna and Billfish Fishery and to a lesser extent, the Western Tuna and Billfish Fishery. Figure 3 displays the locations of recent catches in the Australian SBT Fishery, and Figure 4 displays general movement patterns of SBT.


Figure 3: Catch in the SBT fishery, 20163

Figure 4: General movement patterns of SBT

3Patterson, H, Nicol,S & Curtotti, R Fishery status reports 2017. Australian Bureau of Agricultural and Resource Economics and Sciences, Canberra.


1.7 Allocation between sectorsThere is no allocation between commercial sectors in the SBT fishery. SFR holders can choose to take their share of the total allowable catch by purse seine, longline or any of the minor line (trolling, polling, rod and reel or hand line) fishing methods. All commercial take of SBT is required to be covered by quota in accordance with the SBT Plan.

In Australia, state and territory governments manage recreational fishing. Recreational catch of SBT is discussed under section 5.4 of this report.

1.8 Governing legislation/fishing authorityThe SBT fishery is managed under the Fisheries Management Act 1991 and the SBT Plan with operators granted access to the fishery through the issue of statutory fishing rights. Australian commitments and obligations under the CCSBT are implemented through the SBT Plan.

1.9 Status of export approval under the Environment Protection and Biodiversity Conservation Act 1999The Southern Bluefin Tuna Fishery Management Plan 1995 received its most recent accreditation under part 13 of the Environment Protection and Biodiversity Conservation Act 1999 and was approved as a Wildlife Trade Operation (WTO) on 12 December 2016. The current WTO accreditation is valid until 13 December 2019.

2. Socio-economic environment2.1 Value of the fisheryReal gross value of production for the wild caught component (does not include longline catch) of the SBT fishery (financial years) was:

2015/16: $35.8 million

2016/17: $39.73 million

2017/18: $32.63 million

Real gross value of production including the value added through ranching (farm gate value) was:

2015/16: $132 million

2016/17: $123 million

2017/18: N/A

2.2 Economic assessmentReports on the economic performance of Commonwealth Fisheries including the SBT fishery are conducted by the Australian Bureau of Agricultural and Resource Economics and Sciences (ABARES). Economic reports are now incorporated into the ABARES fisheries status reports that are available on the ABARES website;

http://www.agriculture.gov.au/abares/research-topics/fisheries/fishery-status/southern-bluefin-tuna-fishery




2.3 Quality assurance and controlAustralian seafood destined for export is subject to Commonwealth regulation under the Export Control Act 1982 and Export Control (processed food) Orders, to ensure compliance with food safety and trade description requirements. All land based processing establishments and vessels, which process on board are required to be registered by the Department of Agriculture.

3. Management3.1 Changes to management The SBT Plan underwent amendments in 2012/13 to accommodate changes to monitoring arrangements, incorporate live release provisions and to allow AFMA the ability to implement decisions of the Commission for the Conservation of Southern Bluefin Tuna such as undercatch arrangements. No further Plan amendments have been made since that time.

3.2 Performance of the fishery against objectives, performance indicators and performance measuresA statement of the performance of the SBT fishery against its objectives, performance indicators and performance measures is made annually in AFMA’s Annual Report. A copy of the current statement can be found at: https://www.afma.gov.au/annual-report-2017-18

3.3 Compliance risks present in the fishery and actions taken to reduce these risksCompliance risksAFMA has adopted a risk-based compliance approach that enables AFMA to target compliance and enforcement activity in areas most needed and therefore most effectively use AFMA’s resources. It involves a series of steps to identify and assess non-compliance risks and then apply tailored compliance measures to control these risks.

The SBT Plan and associated legislation outline measures which ensure there is a high level of compliance with management arrangements for the SBT Fishery. The measures in place to monitor compliance with arrangements include:

the requirement to carry a Vessel Monitoring System (VMS), which enables monitoring of the movement of vessels within the fishery. Information provided through the VMS includes the vessel’s location, course and speed;

the observers on board aim to cover at least 10 per cent of catch and effort in line with the CCSBT requirement, which allows for monitoring and recording of all the observed catch by an independent person. Observers are also able to monitor an operator’s compliance with management arrangements and interaction with bycatch and protected species, in particular environmental management measures;

a formal process through which observers may raise any compliance related issues with the master of the vessel to ensure operators are aware of and comply with management measures;


https://www.afma.gov.au/annual-report-2017-18

https://www.afma.gov.au/annual-report-2017-18

provisional at sea estimates and bounds on under or overestimates in case of a serious incident during towing;

detailed verification and count requirements for transfer of SBT between purse seine, tow and grow-out pontoons to ensure compliance with quotas;

requirement to complete Catch Documentation Record (CDR) and Catch Documentation Scheme (CDS) paperwork for SBT product;

completion of shot-by-shot daily logbooks and provision of that data to AFMA and relevant researchers;

Electronic monitoring (e-monitoring) became mandatory for all full time boats in the Eastern Tuna and Billfish Fishery from 1 July 2015. E-monitoring is a targeted approach to collecting information on fishing activity, which integrates video, sensors and programmable loggers into a powerful data collection tool. This data is used to verify fishers’ log books.

at sea and in port inspection by fisheries compliance officers; and

an annual audit based system that includes reconciliation of catch, sales and export statistics by company.

Farm monitoring technology In October 2009, the CCSBT passed a resolution requiring Australia to undertake a commercial trial of stereo video technology, covering 10 per cent of the SBT transferred in the 2011 fishing season, to assess its commercial feasibility. Stereo video technology uses two digital cameras to measure the length of the fish swimming past the cameras during the transfer procedure. The use of two cameras enables a triangulated, ‘real’ length to be calculated and this can be converted to a weight estimate via a programmed algorithm.

Following the commercial trial of the technology in early 2011, the AFMA Commission agreed in September 2011, to implement stereo video from 1 December 2012.

After the open tender process for stereo video, it was clear that AFMA did not have sufficient funding to implement stereo video monitoring for the fishing season starting 1 December 2012. As a result of this, AFMA decided to delay the implementation of the technology until 1 December 2013.

For the season starting 1 December 2012, AFMA improved the statistical quality of the sampling regime by increasing the sample size from 40 fish (>10kg) to 100 fish (>10kg). The procedure to verify the catch consists of hooking a sample of 100 live fish from the tow cage (only fish greater or equal to 10kg are included in the sample – the ‘10kg rule’) using a baited handling. These fish are weighed and returned to the tow cage. An underwater video camera is used to film the transfer of fish from the towed cage into the ranch cages. During review of the footage, each fish is counted by an AFMA representative together with a representative of the ranching company. The number of fish in the count is multiplied by the average weight of the 100 fish sample to estimate the total weight of fish in the cage. This is then deducted from a concession holder’s quota holdings.

On 5 October 2012 AFMA signed a contract with Protec Marine Pty Ltd, to supply monitoring services (including the provision of stereo video monitoring) to the Southern Bluefin Tuna Fishery for the next three years, with the option of a further two year extension. Subsequent to this decision the Government noted that unautomated stereo


video monitoring would impose an excessive regulatory and financial burden on industry. The Government therefore decided to postpone the implementation of stereo video monitoring until an automated solution could be found. The contract was amended to supply 100 fish sampling services to AFMA.

An Australian Research Council project titled “Automation of species recognition and size measurement of fish from underwater stereo video imagery” was commenced in 2012. The project aimed to incrementally automate the recognition and measurement of fish within stereo-video sequences to accurately and efficiently count fish and estimate their biomass. The ultimate goal is to fully automate the species recognition and size or biomass measurement of fishes to efficiently use the thousands of hours of stereo-video footage that are routinely captured. The project being led by Professor Euan Harvey of Curtin University in Western was completed in early 2017. The primary paper outlined a number of semi-automated solutions relating to the measurement of live fish. The paper titled Towards automating underwater measurement of fish length: a comparison of semi-automatic and manual stereo–video measurements - Shafait, F. et al. was presented to the CCSBT Compliance Committee in October 2017. Australia continues to investigate the use of alternate technologies and methodologies that may improve the estimates of Southern Bluefin Tuna catch in the purse seine sector.

Since the season starting 1 December 2012, AFMA has used the 100 fish sampling procedure as the basis of its monitoring program.

3.4 Consultation processesThe Southern Bluefin Tuna Management Advisory Committee (SBTMAC) is the key advisory committee for management of the domestic SBT fishery. The SBTMAC membership comprises representatives from AFMA (1), scientific agencies (1), a conservation Non-Government Organisation (1), and industry (4) and a Recreational member. Representatives from the pelagic longline sector, State Fisheries agencies and the recreational/charter fishing sector attend meetings as permanent observers. The Scientific Committee of CCSBT is the key scientific assessment group for the SBT fishery and includes representation from member countries of the Commission and nominated scientists including CSIRO, ABARES and other expertise-based scientists. Representatives from the fishing industry and fisheries management also attend Scientific Committee meetings. This committee provides advice to the CCSBT Commission regarding SBT stocks and the global annual catch of SBT.

The CCSBT holds its annual meeting in October to agree management measures and members’ national allocations. In normal circumstances this would occur before the Australian fishing season (1 December – 30 November) commences. This information is then provided to the AFMA Commission. The AFMA Commission considers the CCSBT allocation for the domestic fishery, and sets a live weight value for SFRs allocated to the domestic fishery, together with other relevant factors such as the Commonwealth Harvest Strategy Policy and advice on the status of the stocks. Under the terms of the Southern Bluefin Tuna Management Plan 1995, AFMA may set catch limits at a level lower than that set by CCSBT if this is deemed necessary, but cannot exceed the national allocation from the CCSBT. There are a series of arrangements in the SBT Plan should the CCSBT not agree on national catch limits.


3.5 Description of cross-jurisdictional management arrangementsThe Australian SBT fishery encompasses SBT fishing operations inside the Australian Fishing Zone (AFZ) and on the High Seas. An Offshore Constitutional Settlement (OCS) agreement has been reached which gives the Commonwealth jurisdictional management over SBT in all waters inside the AFZ except in New South Wales State waters. In New South Wales, the State Government has banned the commercial take of SBT inside three nautical miles from the Australian coastline. The recreational take of SBT is managed by each State through the setting and enforcement of bag and size limits.

3.6 Compliance with threat abatement plans, recovery plans and domestic and international agreementsOn 24 November 2010, the federal environment minister announced his decision to list southern bluefin tuna as conservation dependent under national environmental law the EPBC Act. The listing as conservation dependent recognised the strong measures in place in Australia to manage southern bluefin tuna and also accounts for the progress being made at an international level to rebuild the global stock to ecologically sustainable levels.

The conservation dependent listing recognises that commercial fishing for southern bluefin tuna is carried out under the Southern Bluefin Tuna Management Plan 1995. Catch levels set under that plan reflect the decisions of the CCSBT, which are legally binding on Australia.

The SBT Plan and supporting instruments have been drafted to take account of relevant international and national plans and agreements and ensure that the fishery is compliant. Reports from the AFMA Observer Program and logbook information together, with other intelligence are used to gauge the fishery’s compliance with management measures.

Australia’s Compliance Action Plan is tabled annually at the CCSBT Compliance Committee meeting. The Compliance Action Plan provides specific details on Australia’s allocation under the global quota for SBT, and a scheme demonstrating the systematic verification of catch data for SBT and Ecologically Related Species (ERS).

4. Research and monitoring4.1 Research AFMA calls annually for research applications to address research priorities and gaps in knowledge, as identified in the AFMA Five Year Strategic Research Plan. The SBTMAC and the Commonwealth Fisheries Research Advisory Board (ComFRAB) assess these applications for funding from the AFMA Research Fund and Fisheries Research and Development Corporation (FRDC). Additionally, projects are also funded from other sources such as the Department of Agriculture, industry and the CCSBT.

4.2 Monitoring programs used to gather information on the fisheryAn information and data collection system is in place to ascertain the status of fish stocks in the SBT fishery. Due to the global SBT management arrangements that are in place, Australia has international research and data reporting obligations through


CCSBT. As part of the international research effort under the CCSBT, the information collection systems in place in Australia that contribute to international and domestic SBT data collection and monitoring obligations include:

Scientific surveys – (current)i) A gene-tagging project for juvenile SBT - managed by CSIRO/CCSBT

ii) the Archiving of hard parts for routine ageing and developing age-length keys for the Australian SBT surface fishery – managed by CSIRO

iii) A method for estimating the absolute spawning stock size of SBT, using Close-kin genetics – managed by CSIRO

iv) Intercessional supporting science to CCSBT scientific Committees

Daily fishing logbooksDaily fishing logbooks are completed by the fisher and are a self-reported record of fishing catch and effort, that are specific to the method employed. The data collected on these logs includes:

Boat/gear details Net/Pole details

Vessel masters details Fishing details (incl. temp, lat/longs, time)

Bait types Search details

Estimated catch weight per shot Towing details

Wildlife Interactions Concession holder declaration

Carrier boat details Fishing method

Catcher to tow pontoon transfer details Area fished

Estimate of fish weight Record of all SBT mortalities

Declaration confirming accuracy of data

In the SBT fishery, fish can be caught using a range of methods and each method has a specific logbook.

Line MethodsThe Australian Pelagic Longline Daily Fishing Log (AL06) is required to be completed by fishers when using pelagic longline or when fishing with minorline methods.

Purse seine and pole caught fish that are landed to a farmFish taken by purse seine or pole methods that are landed to a farm, are recorded in the Australian Purse Seine and Pole Daily Fishing Log – for farmed Southern Bluefin Tuna only – (TPB03A). The Farm Transit Log (SBT03B) is completed by the holder of the SBT carrier boat permit or representative, and provided to the monitoring company, which undertakes the fish count when fish are transferred from tow pontoons to ranching pontoons. All mortalities that occur during the capture and towing operations must be recorded on the appropriate forms and must be available for inspection if requested by an AFMA officer.


In line with reporting requirements for the CCSBT, a farm stocking form (FSAU) is completed after transfers have taken place.

Purse seine and pole caught fish that are not landed to a farmFish taken by purse seine methods that are not landed to a farm are recorded in the Purse Seine Daily Fishing Log (PS01A).

Fish taken with the use of pole fishing methods that are not landed to a farm, are recorded in the Australian Purse Seine and Pole Daily Fishing Log (TPB02).

Catch disposal records – longline and fish not landed to a farmCatch Disposal Records (CDRs) for SBT were introduced in September 1985. The recording details have since been modified to reflect changes in the nature of the SBT industry. In the longline fishery, SBT that are landed are recorded in the Pelagic Fisheries CDR (PT02B), and this is used to decrement quota.

All CDRs are signed by the fishing concession holder and the first fish receiver immediately after unloading the catch. CDRs also provide a means to verify logbook data. A copy of the completed catch disposal form must be submitted to AFMA within 24 hours of the dispatch of a consignment from the place of unloading.

Catch disposal records – farmed fishCatcher boats must complete the Southern Bluefin Tuna Fishery Farm Catch Disposal Record – Purse Seine Boat (SBT02). This form is designed to meet the requirement that operators provide a catch estimate at the start of the tow operation.

In the case of farming operations when SBT are transferred from tow pontoons to the ranching pontoons, a video record must be carried out by the AFMA contracted monitoring company. The video recording is then used to undertake a count of the fish that are transferred into the ranching pontoons. This count forms the basis of a weight estimate that is recorded in the Farm Disposal Record (SBT04B) and decremented from quota.

Catch documentation schemeIn 2008 the CCSBT adopted a resolution instituting a Catch Documentation Scheme (CDS). The resolution came into force as of 1 January 2010. The CDS replaced the export based Trade Information Scheme (TIS). The aim of the CDS is to prevent SBT caught by Illegal, Unreported and Unregulated (IUU) fishing practices, from entering the market. The CDS also aims to provide an accurate estimate of total catches for monitoring and compliance purposes. Unlike the TIS, the CDS applies to fish marketed domestically (i.e. Japanese boats landing in Japan).

The CDS applies to all SBT domestically sold or exported. Under the CDS, each whole fish is required to be tagged, weighed and measured, and have the correct accompanying documentation. Since 1 January 2010, no SBT can be sent for domestic sale, export or accepted for import, without the correct accompanying CDS documentation. Copies of all documents issued and received are provided to the CCSBT Secretariat on a quarterly basis for; compiling into an electronic database, analysis, identification of discrepancies, reconciliation and reporting.

Hatchery SBT product


It is possible that at some stage in the future, hatchery bred SBT may appear on the market however, due to technical issues relating to the grow out of hatchery bred fish and the very high costs associated with the technology, it is unlikely that this will occur in the foreseeable future.

4.3 Observer programAn independent observer program has been in place in the purse seine sector since 2002/03. The program aims to meet all domestic observer requirements and the CCSBT requirement to observe at least 10 per cent of the catch. The principal objectives of the observer program are to:

Monitor and record the day-to-day fishing operations;

Observe, record and report catch, effort, bycatch and fate of purse seine caught SBT, including monitoring tow operations;

Collect information on the vessel details including; search gear and methods, and fishing gear;

Collect biological data from fishing operations; and

Record all interactions and sightings of marine mammals, cetaceans and birds.

Purse seine fishery—Great Australian Bight 2017–18The purse seine observer program for the 2017–18 Australian SBT fishing season monitored fishing and tow operations in 34°03’–36°09’S and 138°04’–138°22’E in January, February and March 2018. Two Australian observers monitored 40 purse seine sets where fish were retained. Fish were released from a two shots as they were deemed to be too small. This represents 20.9 per cent of the total sets in which fish were taken in 2017–18. From these observations an estimated 933 t of SBT were caught during observed sets, representing 19.0 per cent of the estimated tonnage caught. An estimated 53 t of fish were released alive because the fish were too small.

The observers recorded a total of 26 mortalities during purse seine operations, all of which were sampled, with lengths measured for 25. One observer monitored one tow operation and recorded no SBT mortalities during the towing operation.

Longline fishery In 2017, in the ETBF, south of 30°S and during the months of May to September, e-monitoring monitored 118 564 hooks of a total of 1 316 510, representing 9.0 per cent observer coverage of longline effort during the SBT migration. For the fishery as a whole, 10.2 per cent of hooks were observed in 2017. The observed total catch number of SBT 1227 individuals, of which 1200 were retained, 27 fish were discarded (15 of which were reported as released alive, 4 were dead and 8 of which were reports as having an undetermined life status) and none were tagged.

ETBF logbooks for 2017 showed 12 326 SBT (577.6 t) were retained and 2873 (18.9 per cent) were released. During 2017, there was 11.7 per cent observer coverage of longline hook effort in the WTBF. Three longline vessels participated in this fishery in 2017.

Electronic monitoring


Electronic monitoring (e-monitoring) became mandatory for all full time boats in the Eastern and Western Tuna and Billfish Fisheries from 1 July 2015. All boats longlining for SBT are required to also hold either an Eastern or Western Tuna and Billfish Fisheries concession and are therefore required to be covered by e-monitoring.

E-monitoring is a targeted approach to collecting information on fishing activity that integrates video, sensors and programmable loggers into a data collection tool. This data, including video footage reviewed by independent analysts is used to verify fishers’ log books.

The baseline audit rate for all fisheries is a minimum 10 per cent of shots for each boat. This includes analysis of full catch composition for each shot selected for review. Catch composition, discards and interaction with protected species on audited shots will be compared to logbook records with discrepancies flagged and reported to AFMA. All interactions with protected species are then reported to the Department of Environment and Energy as required.

Analysis of logbook data indicates industry are reporting more species on their logbooks and reporting of bycatch has increased. While not discounting possible environmentally-driven shifts in availability and abundance, as well as individual vessel effects, the weight of evidence from a number of studies suggests the use of an integrated EM system has led to significant changes in logbook reporting of discarded catch and protected species in the ETBF.

5. Catch data5.1 Total domestic catch and effort of target species (Southern Bluefin Tuna)

Fishing season Catch (t) Method Number of vessels

2015/16 4904 Purse seine 6731 Longline 19



1 Minor line 2

Table 1. Catch by method SBTF

Effort 2014/15 2015/16 2016/17 2017/18

Purse Seine search hours

1016 906 1004 1137

Purse seine shots 154 127 112 198


Table 2. Purse seine catch and effort SBTF (ABARES 2018)

5.2 Take of SBT in other fisheriesAll commercial take of SBT is managed under the SBT Plan. Any incidental catch of the species taken by operators in the ETBF or WTBF must be covered by quota.

5.3 Total catch of byproduct and bycatch species The SBT Plan does not permit the take of any species other than SBT. Logbook data supported by scientific observer data demonstrates that the purse seine method of fishing, in the area currently fished, is very selective and results in low bycatch or take of byproduct species. Skipjack Tuna are sometimes associated with schools of SBT and are occasionally taken in low numbers.

SBT are caught in the longline sector of the fishery by boats operating in the ETBF. Pelagic longline is a less selective method of fishing and the take of bycatch and byproduct species is managed through management arrangements for the ETBF. The ETBF undergoes a separate accreditation process under the EPBC Act and details of bycatch and byproduct species are outlined in the strategic assessment and annual reports for the ETBF.

5.4 Catch by other sectors SBT Recreational catchRecreational fishing for SBT occurs primarily off south-east Tasmania, South Australia, southern New South Wales and western Victoria. Angling for SBT has been popular among game fishers for many years, but has been increasing in popularity in the general recreational fishing sector in recent years (Rowsell et al. 2008). Recreational fishing for SBT is managed by the relevant states. States that have a recreational fishing bag limit (number of fish that can be retained) for SBT include SA, VIC, TAS and NSW. SA also has a limit on the number of SBT taken per boat.

Overall, the data available on the recreational catch of SBT are limited and no estimates of total Australian recreational SBT catch are available. However, several recent recreational surveys have taken place in individual Australian states (Table 3). Recreational catch was estimated in South Australia and Tasmania in 2007–08. The Tasmanian estimate was obtained from on-site surveys and charter logbooks (Forbes et al. 2009) and the SA catch estimate from a state-wide telephone-diary survey and charter fishery logbooks (Jones 2009; PIRSA unpublished data).

A survey of recreational SBT fishers was conducted in western Victoria in March to July 2011 using onsite survey methods at boat launching ramps (Green et al. 2012). The survey estimated that a total of 19700 SBT were retained during the survey period, weighing about 240t. A further 6900 SBT were estimated to have been released by recreational fishers during the survey period. However, anecdotal evidence suggests that the catch was likely to be much lower in 2012 than in 2011 as the fish were not as readily accessible.

A larger scale survey of recreational fishers was conducted in Tasmania from November 2011 to October 2012, based around an offsite telephone-diary survey, including a charter boat component using voluntary logbooks (Tracey et al. 2013). An onsite survey to estimate the catch of SBT was also conducted from March to July 2012. The telephone-diary survey indicated that 3243 SBT were retained over the year, equating to ~60 t. In addition, 1035 SBT were released. When the charter boat survey was included


the total retained catch of SBT was estimated to be 75.8 t. The survey also estimated that ~27 t were taken by seals during recreational fishing.

Variation in recreational catchAs noted above, anecdotal evidence suggests that the recreational catch of SBT is highly variable between years and regions, for example, the catch in VIC was likely to be much lower in 2012 than in 2011 as the fish were not as readily accessible. The mechanisms driving this variability are currently not well understood but likely include factors such variation in the currents and oceanographic conditions. These environmental factors also likely affect the size of the fish that are available, as variation in the size of the SBT taken by recreational fishers has been documented both within and between years (e.g. Forbes et al. 2009; Tracey et al. 2013). Anecdotally, recreational fishers have noted that the size of the fish can vary between years.

Fisher behavior also varies between regions and seasons and is likely to influence the level of fishing for SBT. In years where the fish are further offshore there is likely to be less effort to fish given the costs of fuel and the time and risk involved in tracking them down. In contrast, when the fish occur close to shore they may be available to a wider group of fishers. Fishers may also be motivated to fish (or not to fish) based on other factors such as the size of the fish being taken and the perceived abundance of fish in that year. It is also unclear whether the targeting behavior of the recreational fishers varies between regions or over time.

Year Location Estimated retained catch (t)

Release rate Size of fish (Weight)

Reference

2008 Victoria Tasmania

29.1 14

NA 20%

NA 20 kg (median; range 10–110 kg)

Unpub data Forbes et al. 2009

2011 Victoria 240 25% 12 kg (mean; range of means (9.19–105.35 kg)

Greene et al. 2012

2012 Tasmania 75.8 24% 16.67 kg (mean of measured fish; range 5.9–99.9 kg)

Tracey et al. 2013

Table 3. Summary of information available for the recreational fishing of southern bluefin tuna in Australia


National estimate of recreational SBT catchIn 2018 the Department of Agriculture contracted the University of Tasmania to undertake a survey of recreational fisher effort, catch, release and harvest estimates of Southern Bluefin Tuna (SBT) and other large tuna and billfish.

The survey will be undertaken in South Australia, Victoria, Tasmania and New South Wales using varied techniques appropriate to each state. The survey methodology is based on the 2015 report ‘Developing robust and cost-effective methods for estimating the national recreational catch of Southern Bluefin Tuna in Australia’ (Moore et al., 2015). Data collection began on 1 December 2018 and will conclude on 30 November 2019. The results of the national survey, due in late 2020, will help inform resource sharing discussions.

5.5 Spatial issues/trendsThe majority of the SBT TAC continues to be taken by the purse seine sector in the Great Australian Bight for subsequent grow out by the ranching sector. In recent years, the remainder of the catch has been targeted or taken incidentally, mainly by pelagic longline vessels operating in the Eastern Tuna and Billfish Fishery (ETBF), with longline catch ranging up to 1035 tonnes annually. The amount taken by longliners on the east coast depends primarily on access to available quota from the sector and the seasonal availability of fish in the regions fished by longliners in southern NSW.

During the winter months when SBT are present off the east coast of Australia, AFMA institutes a restricted access zone to ensure that all incidental catch of SBT by pelagic longliners operating in the ETBF, can be covered by quota. These arrangements include the institution of a ‘core’ zone, which is established based upon information such as sea surface temperature, information from industry and various other sources. In order to access these areas, ETBF operators are subject to minimum quota holding requirements and compulsory e-monitoring coverage.

6. Status of target stock6.1 Stock statusCCSBT conducted the last full stock assessment in 2017. The assessment suggested that the stock remains at a low state, estimated to be 13% (11-17 80% P.I.) of the initial spawning stock biomass, and below the level to produce maximum sustainable yield (MSY). There has been improvement since previous stock assessments which indicated the stock was at 5% (3-8%) of original biomass in 2011 and 9% (7- 12%) in 2014. There are positive estimates of earlier rebuilding of the stock than anticipated in 2011, because fishing mortality rate estimates are below the level associated with MSY.

A review of indicators in 2018 did not suggest new conclusions from those drawn in 2017. Overall, there is a low trolling (piston-line) index of age 1 in 2018, mixed signals of higher recruitment in recent years, and there are some consistent positive trends in the age-based longline CPUE estimates. There may be several relatively strong cohortsmoving through the fishery, although these have yet to contribute to the spawning stock. It was noted that increased recruitment is not necessarily indicative of increased spawning stock biomass and that it will take a few more years before there is sufficient data to confirm the recent apparent strong recruitments evident in the aerial survey.


In 2018 the CCSBT confirmed there were no exceptional circumstances that required the2019 TAC to be revised, and the Global TAC for 2019 was confirmed to remain at17,647t. Australia’s national allocation remained at 6,165 tonnes for the 2018/19 season.

Fig 5. Global catch of SBT by gear.

A summary of the global stock status as assessed by the CCSBT Scientific Committee is listed below.

Maximum Sustainable Yield 33,036 t (30,000-36,000t)

Reported (2016) Catch 14,445 t

Current (2017) Spawner Biomass B10+ 135,171 t (123,429-156,676)

Current depletion (current relative to initial) SSB 0.13 (0.11–0.17)

B10+ 0.11 (0.09–0.13)

Spawner Biomass (2017) Relative to SSBmsy 0.49 (0.38–0.69)

Fishing Mortality (2013) Relative to Fmsy 0.50 (0.38–0.66)

Sensitivity analysis around all sources of unaccounted catch mortality

CCSBT noted that the potential for substantial levels of unaccounted mortality to have occurred were not considered in the design of the management procedure (MP). If these levels are indeed true, they would amount to exceptional circumstances because the probability of rebuilding under the MP will be well below what was intended by the Scientific Committee.

The Scientific Committee also noted that continuing to follow the MP as proposed does lead to continued rebuilding in the short term, even if the circumstances of the


hypothesised additional unaccounted mortality are true. Hence, the Scientific Committee advises the Commission to continue to follow the MP as formulated but, as a matter of urgency, to take steps to quantify all sources of unaccounted SBT mortality.

The next full stock assessment will be undertaken by CCSBT in 2020.

A link to the 2018 ESC Report is available here:https://www.ccsbt.org/en/content/latest-stock-assessment

6.2 Stock assessments and recovery strategiesManagement Procedure (MP)In 2011, CCSBT adopted a binding measure to recover the SBT stock to sustainable levels by agreeing to a Management Procedure (MP). A management procedure is a pre-agreed set of rules that can specify changes to the total allowable catch (TAC) based on updated monitoring data. International agreement was reached to rebuild the SBT stock to an interim target reference point of 20 per cent of the original spawning stock biomass by 2035. The MP incorporates the latest data to establish a global TAC limit for three year periods that supports the recovery of the stock.

The MP now provides the basis for setting the global TAC which is the first time a binding recovery target has been included in the TAC setting process for a Tuna species. TACs will be increased or decreased based on consideration of independent stock indicators to ensure that the recovery of the SBT spawning stock remains on track.

The CCSBT has decided to develop a new MP to guide the setting of TACs for 2021 and onwards. The new MP will take into account changes in data availability, in particular, changing the recruitment monitoring series from an aerial survey of juveniles to a juvenile gene tag/recapture program. Work on the new MP is ongoing with several candidate MPs developed. Further discussions will be held at the CCSBT meetings in 2019.

7. Interactions with protected species7.1 Frequency and nature of interactionsThere are protected species listed under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) that may interact with the tuna purse seine fisheries.

Marine TurtlesThere are no recorded (logbook or observer) interactions with marine turtles for tuna purse seine operations within the AFZ. Interactions in the longline sector are reported in accordance with conditions of operators ETBF concessions.

Seabirds During the 2011 SBT fishery season, observers in the purse seine sector reported two interactions with a short-tailed shearwater on board a purse seine boat. In the first reported interaction the bird flew into a deck light and was last seen swimming at the surface and possibly injured. In the second reported interaction the bird was found alive and left to rest on the deck but later died. The boat was at anchor and not fishing during both interactions.


https://www.ccsbt.org/en/content/latest-stock-assessment

https://www.ccsbt.org/en/content/latest-stock-assessment

According to logbook records, there have been no interactions with seabirds in the SBT Fishery in recent years In the ETBF seabirds are managed under the seabird threat abatement plan.

Sharks

Great white sharks (Carcharodon carcharias) are protected in Commonwealth waters under the EPBC Act. They are present in the area of the SBT surface fishery, and there are anecdotal reports that cite interactions in Commonwealth waters (for example white sharks entering tow pontoons or harassing SBT during transport operations).

The last reported interactions with white sharks were in 2011. In both cases the sharks were released from the tow pontoon by dropping the net and the shark swam free.

Cetaceans and other marine mammals There have been no logbook or observer reports of purse seine interactions with cetaceans in the Southern Bluefin Tuna purse seine fishery. There have been some anecdotal reports of seals interacting with tow pontoons and lightly with the purse seine net, however, to date there have been no observed fatalities or injuries associated with fishing operations. There was one reported interaction with a seal (unidentified) in the SBT fishery with a seal reported in logbooks as being entangled in boat propeller. The seal was reported as being alive.

Based on current information the level of marine mammal interaction with Australian tuna purse seine operations is considered low.

7.2 Management action taken to reduce interactionsFishers are required to submit detailed reports of each wildlife interaction within 24 hours of the occurrence. Each report must also include a detailed response to the wildlife interaction which must be implemented immediately by the fisher to minimise the likelihood of similar interactions. The reports are submitted by AFMA to the Protected Species Unit at the Department of Environment and Energy.

Bycatch handling/treatmentFishers are responsible for handling bycatch species appropriately to maximise the chance of their survival. Mishandling bycatch species can significantly reduce their chances of survival and have long-term impacts on the sustainability of the species.

Fishers must not mistreat bycatch. Mistreat is defined as the taking of an action or actions, or the failure to take an action or actions, which results, or is likely to result, in the death of, injury to, or causing of distress to any bycatch. AFMA has developed six bycatch handling and treatment principles to minimise the risk of breaching bycatch handling and treatment (Table 4.)

Table 4: Overarching principles for bycatch handling

Principle Description

1 Safety of the boat and its crew are paramount

Mishandling does not include actions taken (or not taken), which are reasonably necessary to ensure the safety of the boat and or its crew.


Principle Description

2 All reasonable steps should be taken

Operators are expected to take all reasonable steps to ensure that bycatch is returned to the water as quickly as practicable and in a manner which does not reduce its chance of survival.

3 Minor gear recovery is not ‘reasonably necessary’

Actions taken for the sole purpose of recovering minor fishing gear, are not considered ‘reasonably necessary’.

4 Expediting removal from gear is not ‘reasonably necessary’

It is not ‘reasonably necessary’ to injure bycatch when removing it from fishing gear to save time.

5 Harm, injury or death caused during capture is not mishandling

Mishandling does not include where bycatch is already dead, injured or stressed when it is brought on-board

6 Compliance with approved bycatch management plans

Handling of bycatch in accordance with AFMA approved bycatch management plan(s) is not mishandling.

8. Impacts of the fishery on the ecosystem8.1 Results of the Ecological Risk AssessmentsIn accordance with AFMA’s Ecological Risk Management framework Ecological Risk Assessments (ERAs) have been conducted for all AFMA-managed fisheries. By assessing the impacts of fishing on all parts of the marine environment, the ERAs encompass an ecosystem-based assessment approach. The ERAs help prioritise research, data collection, monitoring needs and management actions for fisheries and ensure that they are managed both sustainably and efficiently.


Figure 6. Risk assessment hierarchy

Level 2 ERA ResultsA total of 193 target, byproduct and Threatened, Endangered, Protected (TEP) species in the SBT fishery were assessed at Level 2 using the Productivity Susceptibility Analysis (PSA). Of these, 3 species were assessed to be at high risk, including; the target species Southern Bluefin Tuna, a bycatch species (Dusky shark) and one TEP species (White Shark). The remaining species were at medium or low risk. A copy of the level 2 SBT fishery ERA document can be found at Attachment B.

Level 2 ERA Residual Risk ResultsDue to the semi-quantitative nature of the risk assessment, the Level 2 PSA results do not directly account for all management measures, resulting in a potentially overly cautious estimation of the actual risk for some species. To better encompass this, the Level 2 PSA analysis has undergone further refinement by applying a set of residual risk guidelines.

Securing Australia’s Fishing Future AFMA.GOV.AU

Scoping

Level 1 AssessmentQualitative: Scale Intensity Consequence Analysis (SICA)

Level 2 AssessmentSemi-quantitative: Productivity Susceptibility Analysis (PSA)

Residual Risk Assessment (of the Level 2 Assessment)Semi-quantitative: Residual Risk Assessment Guidelines

Level 3 AssessmentQuantitative: Sustainability Assessment of Fishing Effects (SAFE) or Full

Stock Assessment

Risk Assessment HierarchyIncreasing costs and data requirem

entsIncreasing accuracy and confidence in attributed risk

Increasing costs and data requirements

Increasing accuracy and confidence in attributed risk

Highest level of assessm

ent for the fishery

32

In early 2007, the residual risk guidelines were developed in consultation with CSIRO and stakeholders, to assist AFMA managers in refining the Level 2 PSA results. They have been developed to maintain the key features of objectivity and consistency from the ERA process, and to ensure a repeatable and transparent assessment process. These guidelines take into account the methodology related matters and the most current management arrangements. To assist managers, a clear set of decision rules are outlined that are to be applied to individual species.

For the Southern Bluefin Tuna Purse Seine Fishery, the results from the Level 2 PSA table are used to determine the residual risk at this level of assessment. Overall, three high risk species were assessed, of which none remained at high risk after applying the residual risk guidelines. The SBT fishery Residual Risk document can be found at Attachment C.

Level 3 Quantitative Assessment ResultsAFMA commissioned CSIRO to conduct a comprehensive, rapid and quantitative assessment (Sustainability Assessment of Fishing Effects SAFE) for all chondrichthyan and teleost species in several Commonwealth Fisheries including the SBT fishery. The project extended the methodology of the previous level 2 PSA to provide quantitative estimates of risk for a large number of fish species. Classifications of risk were divided into; low, medium, high and extreme high, with each category having a corresponding precautionary criterion to account for uncertainty.

The results of research under this project directly feed into AFMA’s Ecological Risk Management (ERM) process. It provides direct measures of risk from direct impacts of fishing for a large number of species, from both the individual and the cumulative effects resulting from all Commonwealth managed fisheries examined so far. This will more clearly define the level of risk that fishing poses to particular species, and directly facilitate more informed decision-making. To avoid being impacted by any possible false negative results from the ERA Level 2, CSIRO included not only those species identified at risk, but all non-target fish species identified by the ERA process as likely to interact with fishing operations in the SBT fishery.

The SAFE assessment covered 83 species (6 chondrichthyans and 77 teleosts) in the SBT fishery and concluded that the current fishing intensity imposes low risk to all non-target species assessed in the fishery. It should be noted that SBT were not included in the SAFE assessment of the SBT fishery, as the global TAC for the species is determined by CCSBT, based on a quantitative stock assessment. The SBT SAFE document can be found at Attachment D.

8.2 Nature of impacts on the ecosystemThe completed Phase II ERA for the fishery details that the method of purse seining is highly species and size selective, and minimal habitat impact occurs as no contact is made with the substrate. Impact on the associated ecosystem was eliminated at phase I of the risk assessment process.

8.3 Management action taken to reduce impactsThe Ecological Risk Assessment (ERA) process was designed to assess and rank the ecological effects of fishing in Commonwealth fisheries. The process provided a list of species, habitats and ecological communities that are at risk of ecological damage from the effects of fishing. The SBT Fishery Ecological Risk Management (ERM) strategy


outlines AFMA’s management strategy for impacts on high risk environmental components.

The risk that the SBT fishery poses to the sustainability of the marine ecosystem has been assessed through the application of a progression of risk assessment methodologies as listed below:

a Level 2 PSA Risk Assessment completed in June 2007;

a Level 2 PSA Residual Risk assessment completed in August 2009 for all species occurring in the fishery; and

a rapid, quantitative risk assessment completed in April 2009 for teleost and chondrichthyan species.

The results of these risk assessments have been consolidated and there are no species listed as being a priority for management from the ERA process.

The risk assessment identified 182 TEP species occur within the area of the SBT Fishery (Level 2 PSA). There have been little to no interactions reported with protected species in the SBT fishery. Of these TEP species; 56 are teleosts, 3 are reptiles, 47 are marine mammals, 73 are seabirds and 3 are chondrichthyans. No TEP species were found to be at high risk through the ERA process, however consistent with AFMA’s objectives and good fisheries management practices, all steps will be taken to minimise interactions between these species and the fishery.

The priority for the ERM is to maintain monitoring of the fishery and respond to any interactions with TEP species that occur. A copy of the SBT fishery Ecological Risk Management (ERM) report is available at Attachment E.

8.4 Ecological Risk Assessment and Management ReviewAFMA’s ERM framework was initially developed in 2007 and has been successfully applied to a number of fisheries in Australia and internationally. The framework was independently reviewed by the Australian Continuous Improvement Group in 2014 and several recommendations were made to improve the ERAEF and ensure the framework is robust, efficient and cost-effective, while remaining precautionary. A number of fisheries have been reassessed under the new guidelines. The SBT fishery is scheduled for reassessment in the late 2019.

9. Progress in implementation of recommendations and conditions resulting from the previous assessment of the fisheryDetails of AFMA’s progress on meeting the conditions of the previous assessment are detailed in Attachment A.


10. Attachments

Attachment A - Conditions on the approved Wildlife Trade Operation, December 2016

Attachment B – Level 2 SBT Fishery Ecological Risk Assessment

Attachment C – SBT Fishery Residual Risk Assessment

Attachment D – SBT Fishery Level Three Rapid Qualitative Risk Assessment

Attachment E – SBT Fishery Ecological Risk Management strategy


Attachment A

Conditions on the approved Wildlife Trade Operation, December 2016Relating to the harvesting of fish specimens that are, or are derived from, fish or invertebrates, other than specimens of species listed under Part 13 of the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act), taken in the Southern Bluefin Tuna Fishery:

Performance Criteria Level of achievement Deadline

Condition 1:

Operation of the Australian Southern Bluefin Tuna Fishery will be carried out in accordance with the Southern Bluefin Tuna Fishery Management Plan 1995, in force under the Fisheries Management Act 1991.

Achieved

AFMA continues to manage the Southern Bluefin Tuna fishery consistent with the provisions of the Southern Bluefin Tuna Fishery Management Plan 1995.

Lifetime of WTO

Condition 2:

The Australian Fisheries Management Authority (AFMA) to inform the Department of the Environment and Energy of any intended change to the SBT Fishery’s management arrangements that could affect the assessment of the fishery against the criteria on which Environment Protection and Biodiversity Conservation Act 1999 (EPBC) Act decisions are based.

Achieved

AFMA has informed the Department of Environment and Energy through annual reports of changes to management arrangements in the SBTF.

Lifetime of WTO


Condition 3:

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

Achieved

Annual strategic assessment reports have been produced and presented to the Department of Environment and Energy as per Appendix B to the Guidelines for the Ecologically Sustainable Management of Fisheries - 2nd Edition.

Lifetime of WTO

Condition 4:

The management arrangements for the Australian Southern Bluefin Tuna Fishery to implement catch monitoring technologies which provide a high degree of confidence in the estimates of Southern Bluefin Tuna catch in the purse seine sector.

Achieved

Australia continues to investigate the use of alternate technologies and methodologies that may improve the estimates of Southern Bluefin Tuna catch in the purse seine sector.

Lifetime of WTO

Condition 5:

The management arrangements for the Australian Southern Bluefin Tuna Fishery to begin accounting for Australia’s attributable (Commercial, Indigenous and recreational fishing sector) southern bluefin tuna catch as soon as possible, and at least by 2018.

Achieved

AFMA set the TAC for the fishery in the 2018 fishing season at 6,165 tonnes. The TAC included a set aside amount of 250 tonnes that the industry agreed not to catch to begin to account for all sources of mortality. This arrangement has been continued for the 2019 and 2020 fishing seasons. When setting the TAC for the 2020 season the AFMA

Lifetime of WTO


Commission noted that a number of projects (including the Department of Agriculture funded national survey of SBT fishers) were expected to be completed in the coming years and that these outcomes would help inform the discussion around a formalised resource sharing agreement for SBT.

Condition 6:

The management arrangements for the Australian Southern Bluefin Tuna Fishery to continue to implement all relevant measures agreed by the Commission for the Conservation of Southern Bluefin Tuna in the Australian Southern Bluefin Tuna Fishery, to support the recovery of the Southern Bluefin Tuna stock to ecologically sustainable levels.

Achieved

All measures agreed at CCSBT are implemented in the Australian domestic fishery through the Southern Bluefin Tuna Fishery Management Plan 1995 and associated legislative instruments.

Lifetime of WTO


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