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AFMA Submission – EPBC Act Reassessment

Southern Bluefin Tuna Fishery

April 2016

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

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Contents Contents ........................................................................................................................ 2 Introduction ................................................................................................................... 4 1. Description of the Fishery ........................................................................................ 5

1.1 Species biology ......................................................................................................................8 1.2 Target and by-product species ...............................................................................................9 1.3 Management arrangements ...................................................................................................9 1.4 International context ............................................................................................................ 11 1.5 Fishing methods .................................................................................................................. 13 1.6 Fishing areas ....................................................................................................................... 14 1.7 Allocation between sectors ................................................................................................. 17 1.8 Governing legislation/fishing authority ................................................................................ 17 1.9 Status of export approval under the Environment Protection and Biodiversity Conservation Act 1999 .................................................................................................................................... 17

2. Socio-economic environment ................................................................................ 17 2.1 Value of the fishery .............................................................................................................. 17 2.2 Economic assessment ........................................................................................................ 18 2.3 Quality assurance and control ............................................................................................. 18

3. Management ............................................................................................................ 18 3.1 Changes to management .................................................................................................... 18 3.2 Performance of the fishery against objectives, performance indicators and performance measures ................................................................................................................................... 18 3.3 Compliance risks present in the fishery and actions taken to reduce these risks .............. 18 3.4 Consultation processes ....................................................................................................... 21 3.5 Description of cross-jurisdictional management arrangements .......................................... 21 3.6 Compliance with threat abatement plans, recovery plans and domestic and international agreements ............................................................................................................................... 21

4. Research and monitoring ....................................................................................... 22 4.1 Research ............................................................................................................................. 22 4.2 Monitoring programs used to gather information on the fishery.......................................... 22 4.3 Observer program ............................................................................................................... 25

5. Catch data ................................................................................................................ 27 5.1 Total catch of target species ............................................................................................... 27 5.2 Take of SBT in other fisheries ............................................................................................. 27 5.3 Total catch of byproduct and bycatch species .................................................................... 27 5.4 Catch by other sectors ........................................................................................................ 27 5.6 Spatial issues/trends ........................................................................................................... 29

6. Status of target stock .............................................................................................. 30 6.1 Stock status ......................................................................................................................... 30 6.2 Stock assessments and recovery strategies ....................................................................... 31

7. Interactions with protected species ....................................................................... 32 7.1 Frequency and nature of interactions.................................................................................. 32 7.2 Management action taken to reduce interactions ............................................................... 33

8. Impacts of the fishery on the ecosystem ............................................................... 33 8.1 Results of the Ecological Risk Assessments ...................................................................... 33 8.2 Nature of impacts on the ecosystem ................................................................................... 35 8.3 Management action taken to reduce impacts ..................................................................... 35 8.4 Ecological Risk Assessment and Management Review ..................................................... 36

9. Progress in implementation of recommendations and conditions resulting from the previous assessment of the fishery .................................................................... 36 10. Attachments .......................................................................................................... 37

Attachment A - Conditions on the approved Wildlife Trade Operation, July 2013 .................... 37

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Attachment B – Level 2 SBT Fishery Ecological Risk Assessment .......................................... 37 Attachment C – SBT Fishery Residual Risk Assessment ......................................................... 37 Attachment D – SBT Fishery Level Three Rapid Qualitative Risk Assessment ....................... 37 Attachment E – SBT Fishery Ecological Risk Management strategy ....................................... 37

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Introduction

This assessment covers fishing methods 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 SBTF has been re-approved under the EPBC Act three times with the

current WTO accreditation valid until 22 July 2016.

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

at:

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

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1. Description of the Fishery

A full description of the Southern Bluefin Tuna Fishery (SBT 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

2012/13: 93

2013/14: 91

2014/15: 89

Estimated

catch (fishing

season) and

value

(financial

year)

2012/13 TAC : 4,713 tonnes

Catch1: 4,539 tonnes

GVP: $38.4 million

Farm gate value: $154 million

2013/14 TAC : 5,193 tonnes

Catch: 5,420 tonnes

GVP: $39,500,000

Farm gate value: $125 million

2014/15 TAC: 5,665 tonnes

Catch:5629 tonnes

GVP: N/A

Farm 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 ranching2 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 USA, EU and Republic of Korea.

Fishing

techniques:

In 2014–15 approximatly ninety 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

1 Catch figures may include undercatch or overcatch from the previous season.

2 The terms ranching is the preferred terminology for the grow out sector in South Australia however, the

word farm is used where legislated documents are described.

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in small amounts by pole and line, and trolling.

Stock Status: The 2014 assessment suggested that the SBT stock remains at a very

low state estimated to be 9% of the initial spawning stock biomass, and

below the level to produce maximum sustainable yield (MSY).

However, there has been some improvement since the 2011 stock

assessment and fishing mortality is below the level associated with

MSY. The Biomass of age 10+ SBT relative to the initial stock is

estimated to be 7% which is up from the estimate of 5% in 2011.

Summary of indicators

There were mixed signals from the indicators in 2014, with no issues of

concern. The overall results can be summarised as follows:

The 2014 scientific aerial survey index of relative juvenile (2-4

year old) abundance is the highest value seen in the time series.

Between 2010 and 2014 the index has shown more variation but

with an increasing trend. The commercial SAPUE index also

increased from 2013 to 2014, but to a lesser extent. The trolling

survey index for age 1 declined slightly between 2013 and 2014.

Longline CPUE for the Japanese fleet for ages 6 and 7 increased

steadily from 2007 to 2012 but decreased in 2013. The CPUE

index values for ages 8-11 decreased slightly and gradually from

2008 to 2011 but have increased in more recent years. The

CPUE indices for age 12+ has showed a decline from 2008 to

2010 and then fluctuated around a low level afterward; this is

expected given the weak recruitment from 1999 to 2002.

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 (CCSBT) in the domestic fishery.

The SBT Plan underwent amendments in 2012/13 to accommodate

changes to monitoring arrangements within the fishery and to allow

AFMA the ability to implement decisions of the CCSBT such as

undercatch arrangements.

Management

Method:

The Southern Bluefin Tuna Fishery (SBTF) 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 CCSBT. Each SFR entitles the holder to receive an equal portion

of the TAC set by AFMA for this period.

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International

Management:

Australia is a member of the CCSBT, which is responsible for the

international management of the global SBT stock. The objectives

of the CCSBT are to ensure through appropriate management, the

conservation and optimum utilisation of the global SBT fishery.

Management arrangements agreed at the CCSBT are implemented

in the domestic fishery through the SBT Plan and associated

legislative instruments.

The CCSBT 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 of the

CCSBT 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).

Based on the outcome of the Management Procedure, Australia’s

national allocation for the 2015/16 season is 5,665 tonnes out of a

global TAC of 14,647 tonnes.

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.

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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.

Upcoming

Major

Management

Issues:

Australia will continue to collect vital data through the SBT aerial

survey to support the Management Procedure (MP) adopted in

2011. This includes providing relevant data to the CCSBT for

consideration by the Extended Scientific Committee and the

Extended Commission.

CCSBT has agreed that in the longer term, 2018 and beyond, the

preferred method to estimate recruitment to the SBT stock will be

gene-tagging. The first stage of this project has recently been

completed with the tagging of 2 year old fish off South Australia.

CCSBT has agreed that there is a need to ensure that there remains

a robust science-based MP in place to guide TAC setting. To ensure

the current MP is able to adjust to changes in recruitment

monitoring processes and work being undertaken in relation to

unaccounted mortality on a new MP will be developed by 2019.

The TAC for the next quota block, 2018-20, will be calculated in

2016. The MP will use data from a number of indicators such as the

aerial survey and Japanese longline catch per unit effort to calculate

the figure.

A full stock assessment is scheduled to be conducted in 2017.

1.1 Species biology

Southern 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

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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 M 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 species

The 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 arrangements

The SBTF 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.

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

instruments

Management Plan Supporting instruments

Southern 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

Fisheries Management (Southern Bluefin

Tuna) Regulations 1995

Sets the season for the fishery

Requirements for disposal of SBT to

Ranching operations

Conversion of processed weight to live

weight

Fisheries Management Regulations 1992

Application of the Act to the high seas

Administration of Fisheries Concessions

Standard conditions for fishing concessions

o Eligible boats

o Requirement to have VMS

o Requirement to carry observers

o Disposal of fish to fish receiver

o Catch limits (where relevant)

o Impacts on the marine environment

o Reporting interactions with protected

organisms if injured or killed

Determinations

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 permits

Quota SFR Conditions

Area of waters and area limitation

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-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

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

Carrier 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

1.4 International context

SBT 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.

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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

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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 tonnes3. 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 average 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;

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).

1.5 Fishing methods

Australian 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

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

3 Larcombe, J. and McLoughlin, K. (eds) (2007) Fishery status reports 2006: status of fish stocks managed

by the Australian Government. Bureau of Rural Sciences, Canberra.

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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. 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.

Figure 1: Purse seine method

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 areas

Internationally, SBT has been fished throughout its range by 20 nations, although Japan,

Australia, New Zealand, Taiwan, Korea, South Africa, the Philippines and Indonesia

account for the majority of catches.

The 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.

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In 2013–14, 92.8 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 2 displays

the recent catches in the Australian SBT Fishery, and figure 3 displays general movement

patterns of SBT.

Figure 2: Catch in the SBTF, 2014

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4 Patterson, H, Georgeson, L, Stobuzki, I, & Curtotti, R (eds) (2015). Fishery status reports 2015.

Australian Bureau of Agricultural and Resource Economics and Sciences, Canberra.

16

Figure 3: General movement patterns of SBT and main Australian fishing grounds

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1.7 Allocation between sectors

There is no allocation between commercial sectors in the SBTF. 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 authority

The SBTF 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 1999

The 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 19 October 2010.

The reassessment process was last completed in 2013 and the current WTO accreditation

is valid until 22 July 2016.

2. Socio-economic environment

2.1 Value of the fishery

Real gross value of production for the wild caught component of the SBT fishery

(financial years) was:

2012/13: $38.4 million

2013/14: $39.5 million

2014/15: Not Available

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

value) was:

2012/13: $154 million

2013/14: $125 million

2014/15: Not Available

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2.2 Economic assessment

Reports 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.daff.gov.au/abares.

2.3 Quality assurance and control

Australian 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 DAFF Biosecurity (formerly AQIS).

3. Management

3.1 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 measures

A 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: http://www.afma.gov.au/about-us/afma-

annual-reports/.

3.3 Compliance risks present in the fishery and actions taken to reduce these risks

Compliance risks

AFMA 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:

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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;

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.

Stereo Video 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

20

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.

It should be noted that the 10kg rule was implemented by AFMA in the early 1990s at the

suggestion of industry, to counteract the potential for accidental or deliberate

unrepresentative sampling. The rule was not implemented due to sustainability concerns

about catching small fish, as has been suggested in more recent times. The AFMA

Commission has indicated that once stereo video monitoring is implemented in the

fishery, the 10kg rule would be removed.

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.

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 is due to be completed in May 2016.

Since the season starting 1 December 2012, AFMA has used the 100 fish sampling

procedure as the basis of its monitoring program.

Live fish release

Following a number of successful trial live fish releases AFMA formally incorporated

live release provisions into the Southern Bluefin Tuna Fishery Management Plan 1995 in

2013. All releases, except fish released directly from the purse seine, must be approved

by AFMA and be observed by AFMA or its authorized representative.

21

3.4 Consultation processes

The 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). 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 SBTF

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 Commission regarding SBT

stocks and the global annual catch of SBT. Australia’s SBT research sub-committee

generally meets only when there is a need to review decisions in a domestic context.

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 then 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 arrangements

The Australian SBTF 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 agreements

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.

22

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 monitoring

4.1 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

research sub-committee, SBTMAC and the Commonwealth Fisheries Research Advisory

Board (ComFRAB) assess these applications for funding from the AFMA Research

Fund, Fisheries Research and Development Corporation (FRDC), and Fisheries

Resources Research Fund (FRRF). Additionally, projects are also funded from other

sources such as industry or the CCSBT.

4.2 Monitoring programs used to gather information on the fishery

An 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) the GAB aerial survey project – managed by CSIRO/CCSBT

ii) A gene-tagging project for juvenile SBT - managed by CSIRO/CCSBT

iii) the Archiving of hard parts for routine ageing and developing age-length keys for

the Australian SBT surface fishery – managed by CSIRO

iv) A method for estimating the absolute spawning stock size of SBT, using Close-kin

genetics – managed by CSIRO

v) Intercessional supporting science to CCSBT scientific Committees

Daily Fishing Logbooks

Daily 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:

23

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. Details of the logbooks determined for use in the SBT fishery are

outlined in the Logbook Determination for the Southern Bluefin Tuna Fishery 2011.

http://www.comlaw.gov.au/Details/F2011L01464.

Line Methods

The 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 farm

Fish 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 farm

Fish 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).

24

Catch Disposal Records – longline and fish not landed to a farm

Catch 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. For SBT caught by methods

other than longline that are not landed to a farm, the Southern Bluefin Tuna CDR (CR4A)

is used.

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 fish

Catcher 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 Scheme

In 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.

25

Details of the CDS for farmed SBT and longline caught SBT are outlined in two separate

handbooks available on the AFMA website:

Southern Bluefin Tuna Catch Documentation Scheme Handbook

Southern Bluefin Tuna Catch Documentation Scheme Longline Catch Handbook

Hatchery SBT Product

It is possible that at some stage in the future, hatchery bred SBT may appear on the

market. The Department of Agriculture and Water Resources and AFMA are currently

considering options to take account of hatchery bred SBT and will implement

arrangements as and when it becomes available.

4.3 Observer program

An 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 of both purse seine and longline

sectors. 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 2014–15

The purse seine observer program for the 2014–15 Australian SBT fishing season

monitored fishing and tow operations in 36°13–36°33’S and 137°16–138°13’E in

January and February 2015. One Australian observer monitored 14 purse seine sets where

fish were retained. No shots were aborted while the observer was onboard. This

represents 9.1 per cent of the total sets in which fish were taken in 2014–15.

From these observations an estimated 591 t of SBT were caught during observed sets,

representing 19.9 per cent of the estimated tonnage caught. The observer recorded a total

of seven mortalities during purse seine operations, of which six were sampled. One

observer monitored one tow operation and recorded 21 SBT mortalities during that

towing operation, all of which was sampled. A small number of fish were too

decomposed when found by divers to bring back to the observer for sampling.

26

Purse seine fishery—Great Australian Bight 2015–16

The purse seine observer program for the 2015–16 Australian SBT fishing season

monitored fishing and tow operations in 35°58–36°32’S and 136°31–138°37’E in

January and February 2016. Two Australian observers monitored 25 purse seine sets

across four trips where fish were retained. No shots were aborted while the observer was

on board.

From these observations an estimated 975 t of SBT were caught during observed sets,

representing approximately 20 per cent of the tonnage caught. The observers recorded a

total of nine mortalities during purse seine operations, of which all were sampled. Two

observers monitored one tow operation each and recorded 25 SBT mortalities during

those towing operations, all of which was sampled. The total tonnage observed towed

was 348 t.

Longline fishery – East Coast Australia 2014–15

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

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 report the Department of Environment as

required.

Full comparisons of data are not available at this stage, but a preliminary analysis

between logbook data from July - November 2014 and 2015 indicate industry are

reporting more species on their logbooks and reporting of bycatch has over doubled.

More detailed analysis will conducted in coming months. No instances of protected

species interactions have been found on video footage that were not reported on

logbooks.

Longline fishery - East Coast Australia 2015–16

N/A - The longline season on the east coast of Australia typically annually starts in late

May.

27

5. Catch data

5.1 Total catch of target species

Fishing season Catch (t)5 Method Number of

vessels

2012/13 4198 Purse seine 5

341 Longline 20

2013/14 5039 Purse seine 6

381 Longline 15

2014/15 4947 Purse seine 6

572 Longline 18

Pole 1

R/R 2

5.2 Take of SBT in other fisheries

All 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. When caught in larger numbers, Skipjack Tuna are

generally targeted and caught in accordance with the management arrangements for the

Skipjack Tuna Fishery.

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 catch

Recreational fishing for SBT occurs primarily off south-east TAS, SA, and western VIC.

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

28

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 SA and TAS in 2007–08. The TAS 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 VIC in March to July

2011 using onsite survey methods at boat launching ramps (Green et al. 2012). The

survey estimated that a total of 19 700 SBT were retained during the survey period,

weighing about 240 t. 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 TAS 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 catch

As 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 behaviour 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 behaviour of the recreational fishers varies

between regions or over time.

29

Table 2. Summary of information available for the recreational fishing of southern bluefin

tuna in Australia

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

National estimate of recreational SBT catch

The Bureau of Agricultural and Resource Economics and Sciences (ABARES), has

completed a project to obtain a method for determining a statistically robust estimate of

recreational and charter fishing catch of SBT in Australian waters.

The project provided 3 primary recommendations. The Department of Agriculture and

Water Resources will now consider the outcomes of the project.

A copy of the report can be found here:

Final Report - Project 2012/022.20 - Developing robust and cost-effective methods for

estimating the national recreational catch of Southern Bluefin Tuna in Australia

5.6 Spatial issues/trends

The 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 600 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 restricted access zones 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 ‘core’ and ‘buffer’ zones, which are established based upon the outputs

of the CSIRO SBT Habitat Preference Model and additional information from industry

30

and various other sources. In order to access these areas, ETBF operators are subject to

minimum quota holding requirements (equivalent to 500kg live weight) and high levels

of observer coverage or compulsory e-monitoring.

6. Status of target stock

6.1 Stock status

The 2014 assessment suggested that the SBT stock remains at a very low state estimated

to be 9% of the initial spawning stock biomass, and below the level to produce maximum

sustainable yield (MSY). However, there has been some improvement since the 2011

stock assessment and fishing mortality is below the level associated with MSY. The

Biomass of age 10+ SBT relative to the initial stock is estimated to be 7% which is up

from the estimate of 5% in 2011.

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

Reported (2013) Catch 11,726 t

Current Replacement Yield 44,600 t (35,500 – 53,600)

Current (2014) Spawner Biomass 83,000 t (75,000 – 96,000)

Current depletion (current relative to initial) SSB 0.09 (0.08 – 0.12)

B10+ 0.07 (0.06 – 0. 09)

Spawner Biomass (2014) Relative to SSBmsy 0.38 (0.26 – 0.70)

Fishing Mortality (2013) Relative to Fmsy 0.66 (0.39–1.00)

Based on the results of the MP operation for 2015-17 in 2013 and the outcome of the

review of exceptional circumstances at its 2015 meeting, the ESC recommended that

there is no need to revise the EC’s 2013 TAC decision regarding the TACs for 2016-

17. The recommended annual TAC for the years 2016-2017 is 14,647.4 t.

Summary of indicators

There were mixed signals from the indicators in 2014, with no issues of concern. The

overall results can be summarised as follows:

The 2014 scientific aerial survey index of relative juvenile (2-4 year old)

abundance is the highest value seen in the time series. Between 2010 and 2014 the

index has shown more variation but with an increasing trend. The commercial

SAPUE index also increased from 2013 to 2014, but to a lesser extent. The

trolling survey index for age 1 declined slightly between 2013 and 2014.

Longline CPUE for the Japanese fleet for ages 6 and 7 increased steadily from

2007 to 2012 but decreased in 2013. The CPUE index values for ages 8-11

decreased slightly and gradually from 2008 to 2011 but have increased in more

recent years. The CPUE indices for age 12+ has showed a decline from 2008 to

31

2010 and then fluctuated around a low level afterward; this is expected given the

weak recruitment from 1999 to 2002.

Sensitivity analysis around all sources of unaccounted catch mortality

The 2014 assessment included sensitivity analysis around all sources of unaccounted

catch mortality. The Extended Scientific Committee (ESC) noted that it appears that

significant levels of unaccounted mortality may have occurred which were not considered

in the design of the Management Procedure (MP) and that 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 Extended Commission (EC).

The ESC 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 ESC advised the EC 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. If substantial levels of unaccounted mortality are confirmed,

the ESC noted that there will be a need to retune the MP to achieve the EC’s stated

rebuilding objective. In addition, the ESC advised that the EC take steps to ensure

adherence to its TACs.

A link to the 2015 ESC Report is available here:

https://www.ccsbt.org/sites/ccsbt.org/files/userfiles/file/docs_english/meetings/meeting_r

eports/ccsbt_22/Attachment08_from_report_of_SC20.pdf

6.2 Stock assessments and recovery strategies

Management Procedure

In 2011, CCSBT adopted a binding measure to recover the SBT stock to sustainable

levels by agreeing to a Management Procedure. 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 Management Procedure incorporates the latest

data to establish a global TAC limit for three year periods that will support the recovery

of the stock.

The Management Procedure 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.

Further details on the Management Procedure are outlined in the description of the

fishery at section 1 and the CCSBT resolution on the adoption of the Management

Procedure is available on the CCSBT website at this link:

http://www.ccsbt.org/userfiles/file/docs_english/operational_resolutions/Resolution_Man

agement_Procedure.pdf.

32

7. Interactions with protected species

7.1 Frequency and nature of interactions

There are some protected species listed under the Environment Protection and

Biodiversity Conservation Act 1999 (EPBC Act) that may interact with the Tuna purse

seine fisheries.

Marine Turtles

There 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.

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) .

There was a report of two of great white sharks interactions in AFMA logbooks during

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. Logbook records show that there have

been no interactions with TEP species in the SBT Fishery from 2012 to 2015.

33

7.2 Management action taken to reduce interactions

Fishers 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 Environment Department .

8. Impacts of the fishery on the ecosystem

8.1 Results of the Ecological Risk Assessments

In 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 4: Risk assessment hierarchy

Scoping

Level 1 Assessment Qualitative: Scale Intensity Consequence Analysis (SICA)

Level 2 Assessment Semi-quantitative: Productivity Susceptibility Analysis (PSA)

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

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

Stock Assessment

Risk Assessment Hierarchy

Incre

asin

g co

sts an

d d

ata

requ

iremen

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Incre

asin

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ccu

racy

an

d co

nfid

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attrib

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risk

Incre

asin

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sts an

d d

ata

requ

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Incre

asin

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ccu

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an

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attrib

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risk

Hig

hest lev

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ssessmen

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e

fishery

34

Level 2 ERA Results

A total of 193 target, byproduct and Threatened, Endangered, Protected (TEP) species in

the SBTF 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 SBTF ERA

document can be found at Attachment B.

Level 2 ERA Residual Risk Results

Due 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.

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 SBTF Residual Risk document can be found at Attachment

C.

Level 3 Quantitative Assessment results

AFMA 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 SBTF. 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

35

at risk, but all non-target fish species identified by the ERA process as likely to interact

with fishing operations in the SBTF.

The SAFE assessment covered 83 species (6 chondrichthyans and 77 teleosts) in the

SBTF 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 SBTF, 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 ecosystem

The 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 impacts

The 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 SBTF 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.

36

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 he SBTF Ecological Risk

Management (ERM) report is available at Attachment E.

8.4 Ecological Risk Assessment and Management Review

In response to an AFMA Commission decision in August 2012, AFMA is currently

revisiting its Ecological Risk Assessment (ERA)/Ecological Risk Management (ERM)

framework with the view to improving its performance. It is expected that the

reinvigoration of ERA/ERM will contribute to the increased effectiveness of risk

identification, mitigation and management in all AFMA-managed fisheries. AFMA is

developing an ERM guide (to the revised framework) for fisheries managers, which is

expected to be finalised in mid-2016, allowing the revised framework to be implemented

in a consistent manner across fisheries.

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

Details of AFMA’s progress on meeting the recommendations and condition of the

previous assessment are detailed in Attachment A.

37

10. Attachments

Attachment A - Conditions on the approved Wildlife Trade Operation, July 2013

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

38

Attachment A

Conditions on the approved Wildlife Trade Operation, July 2013

Relating 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

(SBT Plan).

Lifetime of WTO

Condition 2:

The Australian Fisheries

Management Authority

(AFMA) to inform the

Department of the

Environment 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 would write to the

Department and advise

them of any proposed

amendments to the

Southern Bluefin Tuna

Fishery Management Plan

1995. No amendments were

undertaken during the

current accreditation period.

Lifetime of WTO

39

Condition 3:

AFMA to produce and

present reports to the

Department of the

Environment annually as per

Appendix B to the Guidelines

for the Ecologically

Sustainable Management of

Fisheries - 2nd Edition

Achieved.

AFMA submitted the last

Annual Status report to the

Department in October

2015.

Lifetime of WTO

Condition 4

The management

arrangements for the

Australian Southern Bluefin

Tuna Fishery to include

implementation of

appropriate catch monitoring

technologies which provide a

high degree of confidence in

the estimates of Southern

Bluefin Tuna catch in the

purse seine sector.

In progress.

In 2011, the commercial

trial of stereo-video

technology in the SBTF was

used to record SBT from

eight transfers made from

three cages. In total, 23 018

SBT were counted from the

stereo-video recordings and

overall stereo-video

technology was

demonstrated to be robust

under commercial operating

conditions. Technical

details of the commercial

trial were reported to the

CCSBT Compliance

Committee Meeting in

2011. Work examining the

automation of

measurements using stereo-

video is currently underway

and the final report is

expected in April 2016.

Lifetime of WTO

Condition 5

The management

arrangements for the

In progress.

AFMA accounts for all

known sources of mortality

Lifetime of WTO

40

Australian Southern Bluefin

Tuna Fishery to take account

of all sources of mortality of

Southern Bluefin Tuna as

part of management of the

species in Australian waters.

This should include a reliable

estimate of recreational and

charter fishing catch of the

species in Australian waters.

relating to the commercial

fishing of SBT within its

current management

arrangements.

The Bureau of Agricultural

and Resource Economics

and Sciences (ABARES),

has completed a project to

obtain a method for

determining a statistically

robust estimate of

recreational and charter

fishing catch of SBT in

Australian waters.

The project provided 3

primary recommendations.

The Department of

Agriculture and Water

Resources will now

consider the outcomes of

the project.

A copy of the report can be

found here:

Final Report - Project

2012/022.20 - Developing

robust and cost-effective

methods for estimating the

national recreational catch

of Southern Bluefin Tuna in

Australia

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

Achieved.

All measures agreed at

CCSBT are implemented in

the Australian domestic

fishery through the

Southern Bluefin Tuna

Fishery Management Plan

1995 and associated

Lifetime of WTO

41

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.

legislative instruments.

Condition 7

The management

arrangements for the

Australian Southern Bluefin

Tuna Fishery to include

statistically robust levels of

scientific observer coverage

for all sectors to validate:

Southern Bluefin

Tuna commercial

catch

Mortalities,

discarding and high-

grading of Southern

Bluefin Tuna, and

Interactions with

bycatch and EPBC

Act listed protected

species, especially

white sharks

(Carcharodon

carcharias).

Achieved.

Through the scientific

observer program, AFMA

continues to monitor

interactions with protected

species and records bycatch

and discards in all sectors of

the fishery.

Observer coverage, catch

details and interactions with

protected species are

covered in sections 4, 5 and

7 of this report.

No increases in interactions

have been detected to date.

Lifetime of WTO

42

Recommendations on the approved Wildlife Trade Operation, July 2013

Performance Criteria Level of achievement Deadline

Recommendation 1:

The Department of

Agriculture to work with the

relevant state agencies to

refine and implement the

methodology for obtaining

reliable estimates of

recreational and charter

fishing catch of Southern

Bluefin Tuna in Australian

waters.

The Bureau of Agricultural

and Resource Economics

and Sciences (ABARES),

has completed a project to

obtain a method for

determining a statistically

robust estimate of

recreational and charter

fishing catch of SBT in

Australian waters.

The project provided 3

primary recommendations.

The Department of

Agriculture and Water

Resources will now consider

the outcomes of the project.

A copy of the report can be

found here: Final Report -

Project 2012/022.20 -

Developing robust and cost-

effective methods for

estimating the national

recreational catch of

Southern Bluefin Tuna in

Australia

Lifetime of WTO