Bass Strait Central Zone
Scallop Fishery
Resource Assessment Group
(ScallopRAG)
MINUTES
SCALLOPRAG 20
6 & 7 FEBRUARY 2014
Contents
ScallopRAG MEETING 20 ........................................................................................... 3
Attendance ................................................................................................................. 3
OUTCOMES.................................................................................................................. 4
Actions arising ........................................................................................................... 4
Recommendations ...................................................................................................... 4
PRELIMINARIES ......................................................................................................... 5
Introduction and apologies ......................................................................................... 5
Adoption of agenda .................................................................................................... 5
Records of previous meetings .................................................................................... 5
Declaration of interest ................................................................................................ 5
Correspondence.......................................................................................................... 6
DISCUSSION ITEMS ................................................................................................... 6
Research Expression Of Interest (EOI)...................................................................... 6
Harvest Strategy Proposal .......................................................................................... 6
Size Limit ................................................................................................................. 10
Source of Recruits and Clarity and Predictability.................................................... 10
Other Items............................................................................................................... 10
RAG DAY 2 ................................................................................................................ 11
Introduction .............................................................................................................. 11
Research EOI ........................................................................................................... 13
Meeting Closure ....................................................................................................... 14
ATTACHMENT 1 – ScallopRAG 20 Agenda ............................................................ 15
ATTACHMENT 2 – ScallopRAG 20 Conflicts of Interest......................................... 17
ATTACHMENT 3 – AFMA Harvest Strategy Proposal ............................................. 18
ATTACHMENT 4 – ScallopRAG Harvest Strategy Proposal .................................... 24
2
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ScallopRAG MEETING 20
Chair
Mr Bill Talbot
Date
Location
6 and 7 February 2014
AFMA Canberra Office
73 Northbourne Avenue, Canberra
Attendance
Members
Bill Talbot
Chair
Dr Semmens
Scientific Member (IMAS)
Nic Marton (day 1 only)
Scientific Member (ABARES)
Allan Barnett
Industry Member
Steve Shanks
AFMA Member
Kylie Tonon
A/g Executive Officer
Invited participants
David Jarvis
Tasmanian Government (DPIPWE)
Observers
Darren Fearnley
Industry
Andy Watts
Industry
George Day
AFMA SPF Senior Manager
Diarmid Mather
AFMA Economist
Stuart Richey
ScallopMAC Member (Day 2)
Steve Mantzaris
ScallopMAC Member (Day 2)
John Hammond
ScallopMAC Member (Day 2)
John Pollock
ScallopMAC Chair (Day 2)
Apologies
Ian Knuckey
Scientific Member
Jon Bryan
Environment/Conservation member
Nic Marton (day two)
3
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
OUTCOMES
Actions arising
1. ScallopRAG to finalise outstanding minutes from previous meetings out of
session.
2. Dr Semmens to work with the BSCZSF industry throughout the 2014 fishing
season to develop a sampling strategy for finding and analyzing potential 500t
beds of mature, dense scallops.
Recommendations
1. ScallopRAG recommended that fishing cannot commence until a 500t bed of
dense 85mm scallops is found, verified by a report by IMAS at the time of
survey.
2. That future ScallopRAG and ScallopMAC meetings either be combined or
held on the same day with the RAG occurring in the morning and MAC in
afternoon.
3. That AFMA Research Committee request IMAS to provide stock assessment
services for the BSCZSF at a cost of no more than the cost of the last project,
allowing for a CPI increase.
4
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
PRELIMINARIES
Introduction and apologies
The Chair opened the meeting at 10:20am and welcomed members, invited
participants and observers to the meeting. ScallopRAG noted apologies from Dr
Knuckey and Mr Bryan.
Mr Shanks explained that the purpose of the ScallopRAG meeting was to develop and
recommend a revised draft Harvest Strategy proposal. The ScallopMAC meeting
would take into account the RAG advice and form their recommendation on the
proposal to the AFMA Commission for their meeting on 24 February. Mr Shanks
explained that he will ask the Commission to sign off on the proposal and AFMA
would proceed with the development of a full Harvest Strategy for the 2014 BSCZSF
fishing season for the Commission’s endorsement out of session.
Mr Barnett raised concerns that he did not see the value in holding separate RAG and
MAC meetings and suggested a better use of time and resources would be to combine
these meetings.
Adoption of agenda
The RAG adopted the agenda at Attachment 1.
Records of previous meetings
ScallopRAG agreed to finalise any outstanding minutes from previous meetings out
of session.
ACTION ITEM: ScallopRAG to finalise outstanding minutes from previous
meetings out of session.
Declaration of interest
ScallopRAG noted the conflicts of interests declared by Members as shown in
Attachment 2. Those members declaring a conflict left the room individually as the
RAG reviewed their conflict against the agenda items. The RAG agreed that there
were no agenda items where a member would be required to leave the room based on
their declared conflict.
5
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
Correspondence
ScallopRAG noted correspondence from Dr Ian Knuckey and agreed to address his
concerns during the discussions on the draft Harvest Strategy Proposal.
DISCUSSION ITEMS
Research Expression of Interest (EOI)
Dr Semmens explained that he had submitted an EOI as part of the AFMA call for
research for 2014-15. The two budgets provided were developed based on the amount
of information required under the proposed Harvest Strategy.
The cost of measuring boards was not included in the proposal as it was not known
how many were needed. The Tasmanian Representative highlighted the need for
sharing boards between Tasmania and the Commonwealth. There are currently four
Commonwealth and four Tasmanian owned boards available amongst a fleet of
approximately 10-15 boats.
ScallopRAG discussed Dr Knuckey’s email in the context of the proposed harvest
strategy and proposed research. Dr Semmens understood that Dr Knuckey’s concerns
lay with the lack of information required to demonstrate that the co-efficients of
variation (CV) for using the logbook/measuring board data was acceptable under the
lower tier option. ScallopRAG recognized that measuring board and logbook data
would have a different CVs compared to structured biomass surveys. Dr Semmens
explained that the “higher tier” of the current research proposal includes a robust
analysis of data and therefore a higher CV. Dr Semmens explained that it is difficult
to discuss the data requirements and level of risk the RAG is willing to accept as a
Harvest Strategy had not been agreed. Noting this, the RAG agreed to discuss this
EOI after the draft harvest strategy proposal was agreed.
Harvest Strategy Proposal
Mr Shanks introduced the AFMA Harvest Strategy proposal at Attachment 3 and
explained that the AFMA proposal is a way of simplifying the current arrangements
and reducing the management costs. He also explained that once the proposal was
agreed by the RAG and MAC, the proposal would go to the Commission for
endorsement. Should the Commission agree to the proposal, a full harvest strategy
would be developed and implemented for the 2014 season.
Mr Shanks explained that there are three components under the proposed Harvest
Strategy model:
6
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
Tier 3 - Fishery is closed due to no commercially viable beds found or cases of
Paralytic Shellfish Toxin (PST).
Tier 2 - Operators can fish anywhere within the fishery under a low TAC of 1000t
(figure TBC), except for a bed of 500t (figure TBC) to allow for ongoing recruitment
in the fishery. The TAC can increase throughout the season up to a maximum of
2,500t
Tier 1 – This allows for a TAC higher than 2,500t in a good season. Operators can
search for scallops throughout the area of the fishery, then when a potential bed is
found, the area is transected in order to get a biomass estimate of the stock, then close
a proportion of the estimated biomass.
Mr Shanks explained that the RAG and MAC would meet at the beginning of the
season to assess the scientific information available and make a decision on what tier
the fishery should operate at, which would subsequently determine the research costs
incurred.
Mr Jarvis, the Tasmanian representative, explained that it would be good to try to
keep the fisheries across the three jurisdictions as similar as possible to assist both
industry and management. Mr Shanks agreed, but suggested that a “most open, little
closed” approach was much less management intensive than implementing lines on
the water, as applies in the Tasmanian model. In addition, Mr Day explained that the
Commonwealth and Tasmanian scallop fisheries differ because of the large
commitment for operators to fish Bass Strait due to the higher costs than fishing off
the coast of Tasmania, therefore implies less risk to the stock of over-exploitation.
After a brief discussion, ScallopRAG agreed to revise the AFMA proposal in order to
better incorporate their concerns with the current strategy in an alternative RAG
proposal. A copy of the RAG proposal is at Attachment 4.
Mr Marton noted that there needed to be a balance between getting management costs
to an acceptable level and ensuring among other things that there is sufficient data to
monitor the fishery.
Industry members explained that they did not agree with “locking up” 500 tonnes as
they felt that closing areas has not helped the fishery in the past. Dr Semmens was of
the view that the Harvest Strategy should move away from closing areas of a certain
biomass tonnage per se, and move towards the ability to maintain density through
closing beds of highly dense scallops. The basis for this position was research on
scallops and other bivalves has shown that the denser scallops are, the better
conditions were for recruitment. Dr Marton questioned the basis for closing 500
tonnes to fishing and also questioned the application of the dredge efficiency factor
when surveying and setting TACs for the fishery. In order to keep costs down, there
was discussion about doing two-yearly surveys, however industry suggested that any
7
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
closed area needs to be surveyed every year as the scallops condition and abundance
is so variable.
There was also discussion about issuing a low TAC during a survey period where
operators fish their own quota within zones, with real time monitoring, as is done in
Tasmania. Under this model, once the TAC is caught, the area is closed and a
structured survey is conducted in order to set the TAC for the rest of the season. This
is largely self-managed by industry. However Mr Shanks explained that as long as
there are lines on the water management costs will remain high.
The ScallopRAG discussed the appropriateness of the 2,500t trigger limit for the
proposed transition from Tier 2 to Tier 1 in the AFMA proposal. Dr Semmens
explained that 2,500t not actually been caught in the fishery in recent times (the last
time was in 1997) and that Tier 1 arrangements should be able to be accessed at a
more achievable trigger level. The industry participants agreed, explaining that during
productive seasons, the economics restrict fishing at very high levels. The RAG
agreed that an upper limit of 2,000t is a more realistic figure to trigger Tier 1
arrangements. The RAG also agreed to adopt the starting TAC at 1,000t under Tier 2
arrangements under the revised RAG proposal.
The RAG also agreed that the 500t of mature scallops protected by closures could be
split between two beds as the closure of a number of small dense beds was preferred
to the closure of one large bed of lower density. It was identified that this arrangement
would spread the risk of a die-off event in a protected bed. Industry participants
accepted the 500t closed area under Tier 2 arrangements as long as the criteria was
worded as “500t of mature scallops that are greater than 85mm” and the 20% discard
rule did not apply. Dr Semmens also suggested the addition of density in the criteria.
The ScallopRAG moved to discussing the density paper. Dr Semmens explained that
in his paper he recommended a density of one scallop per m2 but acknowledged this
would be rare based on current knowledge. Dr Semmens explained that to work out
density, an abundance survey is required which can be undertaken when surveying for
biomass. Dr Semmens agreed to provide some guidance on defining density
requirements in the RAG proposal. Dr Semmens also noted that in Tasmania, some
surveys are undertaken without scientists, and it could be possible for the BSCZSF
industry to conduct surveys themselves. Mr Jarvis explained that Bob Lister
coordinates the vessels and records catches for surveys in the Tasmanian Scallop
Fishery.
Dr Semmens and Mr Jarvis explained that in the Tasmanian model the industry is able
to search for potential beds while fishing in zoned areas under a 50t TAC under a
research permit. Industry then implement a voluntary closure once the 50t TAC has
been reached in each area. The Scallop Fishery Advisory Committee identifies beds
for IMAS to survey using industry vessels. Most of the area is then closed apart from
the surveyed beds.
8
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
The RAG liked the Tasmanian model for searching for the bed under an initial low
TAC but some members preferred the ‘most open, little closed’ approach following
the identification of scallop beds available to close to fishing. Industry members also
suggested implementing a competitive TAC and research quota across different zones
during the research period in order to spread effort. The RAG suggested that issuing
research quota under a competitive TAC would not be management intensive and
would provide incentive for operators to search for beds. AFMA would send out an
EOI for the ability to fish under the competitive TAC and operators who sign up will
be able to fish the research quota under a permit. Mr Shanks recommended a TAC of
20 tonnes per area as it is precautionary enough not to affect a bed, but high enough to
provide incentive to fish. It was also suggested that higher TACs be set for the
western zones as this area is particularly data poor and a higher TAC would provide
more incentive to fish these areas.
Industry recommended the BSCZSF be divided into five zones based on fishing
effort, and potential beds. The zones and research TACs that were agreed by the RAG
are outlined in Attachment 4.
The RAG suggested a one month survey period from 1 April which could be extended
if needed. An earlier survey start date was discussed however this was a busy time for
crayfish fishing and the scallops are generally not in good condition early in the
season so the RAG agreed on April as a start.
The approximate time frame that was recommended was:




1 April – survey period starts (can be expanded past one month if needed).
May (first 2-3 weeks) – Dr Semmens analyses data (Note that, based on
industry advice, surveying can start as soon as a bed is identified to confirm if
there will be a season)
RAG/MAC meeting to agree to open season – end of May
Decision to open fishery – mid to late June (or earlier if survey results in
earlier)
The RAG agreed that under the RAG proposal once the season was open, a 1,000t
TAC would apply to the fishery that could be increased when 80% was reached. The
RAG and MAC would decide on how much to increase the TAC by, to a maximum of
2000 t, based on the length of season remaining and expected catches.
Mr Shanks explained that under Tier 1 in the AFMA proposal, when moving to Tier
1, at least 40% of the biomass needed to be closed including a bed of 500t. Industry
suggested that there should be no reason not to continue the Tier 2 arrangements past
2000t. The RAG agreed under Tier 1 of the RAG proposal, when a TAC of 2,000
tonnes or more is set, a second bed of 500t needs to be closed.
Mr Marton raised the concern that the Harvest Strategy Policy identifies that stocks
should be managed towards a Btarg reference point and not drop below Blim reference
9
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
point. Noting that under the AFMA and RAG proposals, one 500t bed is a proxy for
Blim (below which there is no fishery). Mr Marton stated that the fishery runs the risk
of being managed at Blim which is inconsistent with the Commonwealth Harvest
Strategy Policy. Mr Shanks explained that due to the highly variable and highly
fecund nature of the fishery, that the risk of operating at Blim is not an appropriate
representation of the status of the stock. Mr Barnett also explained that even though
Blim may be set at 500t, industry cannot fish the stock down to very low levels for
economic reasons.
Size Limit
ScallopRAG then discussed the proposed minimum size limit of 85 mm at the time of
survey. Mr Shanks explained that 85mm was trialed last year and asked if
ScallopRAG wanted to keep the size limit at 85mm under the RAG proposal.
Industry members were supportive of keeping the 85mm size limit.
Dr Semmens highlighted that IMAS currently have an FRDC funded project to
reassess fecundity on scallops between 80-90mm. He supported continuing a size
limit of 85mm temporarily, but recommended to wait until the results of the research
are available before setting a permanent size limit.
RECOMMENDATION: ScallopRAG recommended that fishing cannot commence
until a 500t bed of high density scallops of 85mm is located.
Mr Shanks also explained that under the AFMA proposal, the transiting corridors and
discard rate of 20% of scallops under 85mm no longer applied. However the RAG
agreed that it was important to have the discard rate remain in order to close juvenile
scallop beds. This would be a voluntary closure applied by industry under the RAG
proposal.
Source of Recruits and Clarity and Predictability
The Chair suggested that the RAG had already covered off on the source of recruits
agenda item throughout discussions. Mr Shanks explained that the RAG proposal is
very clear on the application of decision rules, research requirements and management
arrangements and that the ‘clarity and predictability’ agenda item is now obsolete.
Other Items
Dr Semmens asked about the general costs of management under the revised
proposal. Mr Shanks advised that the cost of the RAG proposal was around $250,000
10
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
per year which is only slightly higher than last year. Mr Mather, the AFMA
economist, explained the RAG proposal gives businesses the opportunity to be more
profitable, so even though management costs are similar, the relative management
costs against GVP would be much lower.
It was agreed that the RAG postpone the meeting and that Mr Shanks would write up
the RAG proposal for consideration before the MAC meeting.
RAG DAY 2
Introduction
With the ScallopMAC members present as observers, the RAG Chair gave an
overview of the discussions of Day 1 and explained that ScallopRAG had made very
significant changes to the AFMA proposal. The RAG Chair explained the RAG
proposal agreed at Attachment 4.
The MAC members present were immediately supportive of the little closed, most
open approach in the RAG proposal. Mr Manzaris suggested that a “dense bed”
needed to be defined. Dr Semmens explained that by adding a density factor to the
closed area, it would help ensure the requirement for locking up 500t provides the
best chance for recruitment. It was stated that within the survey period different zones
could be surveyed at the request of industry in order to ensure that the most
productive 500t bed is closed.
The MAC industry members questioned the issuing of research quota under a
competitive TAC because it causes equity issues between operators where two
operators can take the same amount of fish even though one may be paying double the
levy. Mr Barnett explained that the competitive TAC and research quota increased
incentive to fish by ensuring operators don’t have to use their own quota holdings.
Instead of only being issued for the first month of the season, ScallopRAG
recommended that the total 130 tonnes of research quota be issued for the season until
the 500t bed is found to open the fishery. If no 500t bed was found in the first month
of the season, operators were still encouraged to use research quota to keep searching.
Mr Shanks explained that a RAG and MAC meeting would be needed to agree that
the fishery be opened. In addition, Mr Shanks explained that once the fishery opens,
the research quota would cease and if no bed of mature, dense scallops is found in the
130t available, the fishery would be closed for the rest of the season.
MAC industry members expressed that they did not support the closure of a further
500 tonnes of scallops under Tier 1 of the RAG proposal but would accept the closure
in order to get the proposal through.
11
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
MAC industry members suggested that the locked up area should increase by
proportions but the RAG and MAC agreed that it that the original proposal was the
simplest option to implement this season but a proportion approach could be reviewed
in the future.
Mr Richey raised concerns about streamlining the process and cutting time out of the
schedule between searching for beds and opening the fishery. Mr Shanks suggested
that the process would be quick in terms of time required and seeking Commission
approval out of session once it is streamlined.
Mr Richey asked about the costs associated with keeping the fishery running in the
research period before its opening and whether the survey period should be limited to
avoid incurring costs before the fishery is opened. Mr Shanks explained that there
would not be much of a cost difference whether the fishery was open or closed but
that he would let the RAG know if there were any identified extra costs for having the
survey period potentially running all season.
Mr Richey also asked whether an IMAS research officer was required on board the
boat or if the survey work could be done by crew with appropriate training. Dr
Semmens suggested that the approximate size of the beds could be estimated by crew
based on measuring kg of scallops per shot, recording data from measuring boards in
the wheelhouse logs and sending it to IMAS. However, an IMAS officer would still
need to validate the findings. The RAG Chair suggested that it would be beneficial for
the industry to keep recording scallop size with the measuring boards throughout the
season to monitor size of recruits. Industry agreed with this position.
Dr Semmens suggested that it could be useful to set up a small committee to speak
with the fishers when a potential 500t bed is found and set up a semi-formal process /
research plan to ascertain whether it is worth IMAS going out to sample a bed to
avoid IMAS surveying beds on an ad-hoc basis. It was suggested that industry could
do this.
ACTION ITEM: Dr Semmens to work with the BSCZSF industry during the 2014
season to develop a sampling strategy for finding and analysing potential 500t beds of
mature, dense scallops greater than 85mm in size.
Mr Richey suggested that he would like to move to a system where the fishers collect
the data and send it to IMAS for analysis as opposed to IMAS staff being aboard
vessels. Mr Mantzaris asked about the possibility of running a data collection training
course for skippers and crew. Dr Semmens expressed concerns that even if people do
the course it does not mean that they collect good data. Dr Semmens further explained
that there are some good deckies who can be trusted to provide high quality data.
Mr Jarvis highlighted that when considering the RAG proposal, the RAG and MAC
need to think about the accreditation requirements for the fishery under the
12
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
Environment Protection and Biodiversity Conservation Act 1999 and if these
arrangements will meet their requirements.
Mr Hammond raised questions about the dredge efficiency of 33% that was used
when calculating biomass because dredge efficiency varies daily based on numerous
factors including substrate and set up of the gear. Dr Semmens suggested that the
estimates of dredge efficiency are only ballpark figures but doing a fishery
independent survey of biomass to decrease the error is very expensive for a small
fishery.
Mr Barnett again explained that he felt that having separate ScallopRAG and
ScallopMAC meetings was a waste of time and money as the majority of the issues
were discussed twice. Mr Shanks said that he would follow up on this request,
however explained that it is important that the scientific and management advice are
separate.
RECOMMENDATION: That future ScallopRAG and ScallopMAC meetings either
be combined or held on the same day with the RAG occurring in the morning and
MAC in the afternoon.
Research EOI
The RAG then discussed Dr Semmens’s research proposal with the MAC members
present in light of the revised harvest strategy proposal that was developed by the
RAG for the MAC’s consideration.
Dr Semmens explained that the harvest strategy proposal developed by the RAG
requires sampling at the higher tier. Dr Semmens stated that $252,000 over three
years was the ballpark figure as it was hard to predict how much sampling work will
be required. Dr Semmens also mentioned that salaries have increased so it now costs
more to employ and retain people and that he had costed the project as reasonably has
he could. Dr Semmens left the room at this point while the rest of the RAG/MAC
discussed the proposal due to his conflict of interest.
Mr Shanks explained that he thought the proposal was expensive. Mr Richey
suggested that the RAG should add 2.5% CPI to the cost of the previous IMAS
contract and ask Dr Semmens what research they could get for this price.
Mr Mantzaris said that there must be a performance measure to see if research is
effective and if not the RAG should look at other projects that benefit the fishery. Mr
Hammond suggested that the fishery needs studies on where the eggs go, and review
of the 33% dredge efficiency factor.
Mr Manzaris suggested that although they are not convinced the research is overly
effective, it is important to show the wider community that management measures and
13
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
research are in place to develop the fishery. Mr Pollock explained that the industry
need to accept that this fishery is managed on a high level of uncertainty which is why
harvest strategies and biomass surveys are needed.
Mr Barnett suggested that there should be less sampling and data collection required
under the new Harvest Strategy proposal put forward by the RAG. Mr Richey also
mentioned that no more measuring boards were required as industry would need to
pay IMAS to analyse the extra data. It was suggested that the RAG should be looking
into other research providers, for example David Gwyther or Dr Julian Harrington
from the Tasmanian Seafood Industry Council (TSIC) has previously undertaken this
work. Mr Jarvis suggested that in Tasmania there are no other agencies with the
expertise of IMAS.
Mr Shanks suggested that by employing IMAS you can ensure continuity between the
data collection between Tasmania and the Commonwealth. Mr Jarvis explained that
IMAS did not do biomass surveys for the Tasmanian fishery, only surveys of relative
abundance were required with scientific staff on boats only once a year if necessary.
Mr Shanks explained that if the survey was not funded this year, the RAG and MAC
could either decide to close the fishery or look at alternative arrangements for its
operation on a short term basis.
The RAG/MAC agreed that the final advice for the AFMA Research Committee
(ARC) in regards to this coming financial year is that industry’s budget is no more
than last year’s survey as under this proposed Harvest Strategy being put forward by
the RAG, there is expected to be less at-sea work and data analysis than previous
years. Further, industry would prefer to keep the costs down by having a set of
protocols for industry to collect the data themselves under IMAS’ instruction
RECOMMENDATION: That the AFMA Research Committee request IMAS to
provide stock assessment services for the BSCZSF at a cost of no more than that of
the previous three-year project with the addition of CPI.
Meeting Closure
The ScallopRAG Chair closed the meeting at 1:00pm on 7 February 2014.
14
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ATTACHMENT 1 – SCALLOPRAG 20 AGENDA
Time
Item
10.00am
1. Preliminaries
1.1. Welcome and apologies
1.2. Declaration of interests
1.3. Adoption of agenda
10.20am
2. Meeting Administration
2.1. Confirmation of records for previous meetings
2.2. Actions arising from previous meetings
2.3. Correspondence
10.40am
3. BSCZSF Survey EOI
Dr Semmens has submitted an EOI for the project ‘Surveying and assessment of
the Bass Strait Central Zone Scallop Fishery (BSCZSF)’ as part of the AFMA
Research Committee (ARC) 2014 research call. AFMA are after comments from
ScallopRAG on the scope, cost and proposed funding splits for this project.
ScallopRAG’s comments will be provided to the ARC at their meeting on 26
February 2014 to inform their consideration of the EOIs.
10.50am
4. Harvest Strategy Review
4.1. Introduction and background
4.2. Initial thoughts on current proposal
11.15am
5. Harvest Strategy Review – Size limit
Both Tasmania and the Commonwealth have used 85mm as the size limit in the
harvest strategy as the criteria for declaring areas as ‘Viable areas’ (i.e. 80% of
scallops greater than 85mm). Should the proposal put forward by AFMA be
adopted in some form a size limit would need to be incorporated under the
Harvesting Starting Point should tonnage (i.e. 500 tonnes) be used as the criteria
for locking up adult spawning scallops. Recent RAG and MAC meetings have
proposed that a size limit of 85mm be incorporated for the 2013 season. An 85
mm size limit was also applied for the 2012 season. Clear advice needs to come
from the RAG as to whether or not is is appropriate to apply the 85mm size limit
on a permanent basis.
12.10pm
Lunch
15
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
12.45pm
6. Harvest Strategy Review – Data requirements
What are the minimum data requirements for the fishery? Can these data
requirments be obtained from measuring boards and logbook data? What is the
level of uncertainity in obtaining data from only measuring boards and logbooks?
What is the cost of obtaining fishery independent data? What additional
information will fishery independent data obtain? What level of data is obtained
in other jurisdictions (i.e. Tasmania) ?How useful will survey data collected only
once every 3 years be?
1.30pm
7. Harvest Strategy Review – 500t closure & density
While the literature states that for a positive exploitatble biomass 500 tonnes of
adult spawning stock needs to be protected (Haddon 2011 page 62) some have
raised the issue that this analysis related to a stock contained in both
Commonwealth and state waters, with only 500 tonnes contained in
Commonwealth waters. If biomass is to be used in the criteria of adult spawning
stock protected (i.e. 80% of stock is greater than 85mm in size) then a
determination needs to be made on the tonnage locked up (i.e. is 500 tonnes
appropriate).
Recent work by IMAS again highlights the importance of protecting dense beds of
adult scallops in order to ensure ongoing recruitment? Is there criteria around
density that illustrates that a bed has sufficient stock to provide ongoing
recruitment? Can density criteria be used instead of biomass (i.e. 500 tonnes)?
2.30pm
8. Harvest Strategy Review – Source of recruits
Local self-sustaining recruits VS settlement from other beds. The recent IMAS
report outlines the movement and distribution of recruitment. The question is
whether or not recruitment distribution can be taken into account in the revised
harvest strategy?
3.00pm
Afternoon tea
3.15pm
9. Harvest Strategy Review – Clarity and predictability
A prescriptive decision tree defining trigger or decision points to move to each of
the three positions outlined in the proposed revised harvest strategy
3.45pm
10. Harvest Strategy Review – Advice to ScallopMAC & AFMA
Commission
Specific advice in relation to all components of the proposal needs to go to
ScallopMAC. Specifically any modfications and the reasons why and comment on
the figures provided in square brackets. Also clarification on how any of the
above agenda items will/ should be incorporated in the revised harvest strategy
needs to be provided.
4.30
Close
16
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ATTACHMENT 2 – SCALLOPRAG 20 CONFLICTS OF
INTEREST
Member
Mr Bill Talbot
Mr Steve Shanks
Position
Declaration of interest
Chair
No pecuniary interest in the fishery.
AFMA Member
AFMA Manager for the BSCZSF. No
pecuniary interest in the fishery.
Ms Kylie Tonon
A/g Executive
Officer
Mr Allan Barnett
Industry Member
(Tasmania)
Holds Commonwealth and State fishing
concessions, Commonwealth fish receiver
permit and operates a scallop processing
plant.
Mr Darren Fearnley
Industry Member
(Victoria)
Holds Commonwealth and State
concessions.
Mr Andy Watts
Industry observer
Holds Commonwealth and State
concessions.
Dr Jayson Semmens
Research
Member
Management officer. No pecuniary
interest in the fishery.
Scallop Research Group Leader, Institute
for Marine and Antarctic Studies.
Organisation is known to submit research
funding applications for consideration by
ScallopMAC.
Currently submitted an EOI for research in
the BSCZSF
Dr Ian Knuckey
Research
Member
Scientist. No pecuniary interests in the
fishery.
Mr Nic Marton
Research
Member
Scientist, ABARES. Organisation is
known to submit research funding
applications for consideration by
ScallopMAC.
17
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ATTACHMENT 3 – AFMA HARVEST STRATEGY
PROPOSAL
Revision of Harvest Strategy for Bass Strait Central Zone Scallop Fishery
(BSCZSF)
Challenge
The challenge in revising the Harvest Strategy for the BSCZSF is to maintain the
scallop resource at a sustainable level while providing flexible, cost-effective
management arrangements for the fishery.
Issues to address
 Ensure sufficient adult and juvenile stocks are protected to maintain the potential
for ongoing recruitment in the fishery.
 Align management costs with fixed services.
 Provide cost effective management.
 Provide flexibility to search for scallop beds and harvest them efficiently once
located.
Current Harvest Strategy
 Is used to set Total Allowable Catch (TAC) that may be taken under quota
statutory fishing rights in a fishing year.
 Is dependent on the identification of scallop beds as ‘viable areas’ (i.e. 80 per cent
of scallops above 90[85] mm in length) prior to opening.
 Closes the whole fishery and only opens areas that have been identified as ‘viable
areas’, while requiring a ‘viable area’ containing at least 500 tonnes be closed to
fishing
 Incorporates the proportion rule, to lock up a proportion (40%) of the known ‘viable
areas’ established through surveying.
Proposed new Bass Strait Central Zone Scallop Fishery Harvest Strategy
Under the proposed new Harvest Strategy the level of operation of the fishery is
determined prior to the commencement of the season. It is envisaged that both
ScallopMAC and ScallopRAG would meet prior to the commencement of each
season to determine the level of operation for the season. There would also be a
continuing role for the BSCZSF Industry Management Committee (Co-Management
Committee) including setting fishing start and end dates within the season and
identifying areas juvenile bed and unfished areas for closure. The proposed levels of
operation under the Harvest Strategy are:
Fishery closed (Tier 3)
 Should factors influencing the condition of the stock and/or its abundance illustrate
the fishery should not be opened the fishery should be closed.
- Advice on the period of time the fishery should be closed for should be
provided by both ScallopRAG and ScallopMAC.
18
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
-
If the fishery is not closed for the entire season advice on information required
or triggers to open the fishery should be provided by ScallopRAG and
ScallopMAC.
- Any Research Catch Allowance to be recommended by ScallopRAG and
ScallopMAC.
 Factors influencing the condition of the stock and/or its abundance can be both
naturally occurring and human activities.
 If the requirements for ‘Harvesting starting point’ below are not met then the
fishery would be closed.
Harvesting Starting Point (Tier 2)
 Commencing with a TAC of [1000] tonnes.
 Fishing permitted throughout the area of the fishery under low TAC (i.e. [1000]
tonnes) to provide all concession holders the opportunity to search for scallop
beds and harvest at restricted levels.
 Operators must collect length frequency data using electronic measuring boards –
to provide ongoing data to assess and manage the fishery.
 Closure of scallop bed/s of at least [500 tonnes] of adult mature fish (i.e. discard
rate of less than 20% at a size limit of 85 mm). This area must have been
surveyed within three years of the start of the season.
 Identified juvenile beds closed to fishing.
 Areas of the fishery not historically fished closed to fishing to increase opportunity
for recruitment [scallop operators and AFMA to develop proposed areas].
 A TAC starting at [1000] tonnes and moving up to [2500] tonnes in [750] tonne
increments providing the following criteria is met:
- for each additional [750] tonnes added to the initial [1000] tonne TAC, 70%
needs to have been taken (i.e. [525] tonnes).
Detailed Survey Option (Tier 1)
 Aims to maintain continuity of the fishery when there are significant amounts of
scallops.
 A TAC of greater than [2500] tonnes.
 Following the identification of scallop beds, transecting undertaken with a scientific
observer on board for the purpose of obtaining data to determine a biomass
estimate of bed/s.
 TAC set based on biomass estimate/s provided for area/s and length frequency
data provided in report from research provider.
 Incorporates the proportion rule, to lock up a proportion (e.g. 40%) of the known
biomass established through surveying.
 Scientific report showing biomass estimates of bed/s used by ScallopRAG and
ScallopMAC to provide advice on TAC setting, location of areas to be opened to
fishing and location of closure areas (no-navigation areas).
- ‘Viable Area’ used as the criteria for determining areas open to fishing and
closure areas (i.e. discard rate of less than 20% at a size limit of 85 mm).
- At least [500 tonnes] in area/s meeting the definition of a ‘Viable Area’ to be
closed (i.e. non-navigation area).
19
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
Attachment A - questions and uncertainties
Q: Why change from the ‘most closed little open’ approach for the ‘Harvesting
Starting Point’ option?
A: One of the main reasons for the most closed little open approach under the
current Harvest Strategy was to provide continuity of markets by having a significant
scallop fishery each year.1 Given:
-
the costs of this approach, which requires extensive knowledge across the
entire fishery2
- the recent experience in the Commonwealth fishery where there has not
been a consistent harvest,
industry have advised that at lower levels of harvest this should no longer be a key
objective. However, where there are sufficient scallops to allow it, some parts of the
stock will be protected for future harvest (the ‘Detailed Survey Option’).
Further rationale for the proposed most open approach at lower harvest levels are
set out below.
Most closed approach of the current Most open approach of the proposed
strategy
strategy
Maintain continuity of the fishery each Not an objective at lower levels of harvest.
year.
A most closed approach promotes Under the proposed Harvest Strategy
sustainability
sustainability is provided primarily by the
closure of a 500t bed of adults to allow for
recruitment. This meets the requirements
of the Commonwealth Fisheries Harvest
Strategy Policy.3
In addition:
-
juvenile beds will be closed
additional areas nominated by
industry will be closed
there are likely to be other
undiscovered beds or beds in
water too deep to fish contributing
to recruitment.4
1
See Haddon et al, Juvenile Scallop Discard Rates and Bed Dynamics: Testing the Management Rules
for Scallops in Bass Strait (2006) at pages 4, 6, 17 and 121 and Semmens et al, Establishing fine-scale
industry based spatial management and harvest strategies for the Commercial Scallop (2013) at page
4.
2
Haddon et al, Management Strategy Evaluation testing of Management Strategies used with SouthEastern Scallop Fisheries (2011) at page 168.
3
See Haddon (2011) at pages 8, 60 and 62.
4
See Haddon (2011) at page 60.
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
20
Maintain adult beds for spawning
Dense adult bed of 500 t closed. Areas
not generally fished by operators also
closed to allow recruitment.
Minimise the impact of fishing on Impact is limited in the Commonwealth
scallops and communities in the area of fishery by distance, operating cost and the
fishing
small number of operators. This means
that only a small part of open areas are
actually fished (which can be less than 5%
of open areas).5 For example, in 2012
most of the fishery was opened to allow
searching for scallops however only a very
small proportion was fished.
The TAC will also limit impact on scallops
and the environment.
Further, research has found:
- scallop dredging appears to have
minimal short, medium (two years) and
long term impact on the abundance and
structure of scallop bed communities in
Bass Strait6
- there can be a high residual abundance
of scallops and scallop bycatch after
fishing, and little change in community
structure7
- scallops can be mobile meaning lower
impact on the stock from fishing in an
area.8
Managers must have knowledge across Allows fishers to search outside of closed
the fishery leading to relatively high areas and use measuring boards to inform
management costs.
future decisions.
5
Haddon (2006) at page 5 and 35.
Semmens (2013) at page 2 and Haddon (2006) at page 5.
7
Haddon (2006) at page 88 and Semmens at page 2.
8
Haddon (2006) at page 120.
6
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
21
Q: Is it important to keep dense areas of adult scallops closed?
A: Yes – maintaining dense areas of adult scallops may increase the chances of
recruitment, through increased spawning intensity and synchronisation.9
Q: What amount of stock should be kept closed?
A: A bed of adult scallops of at least 500 tonnes is to be kept closed. Management
Strategy Evaluation testing indicates that if 500 tonnes is used as the limit reference
point, then the probability of maintaining the biomass above the limit is expected to
range between 0.93-0.99.
Q: Should juvenile beds be kept closed?
A: Yes. Juvenile beds are kept closed to allow development for future recruitment
and harvest.10
Q: Is there a size limit?
A: As is currently the case, there is no size limit for landed scallops. However, size is
taken into account for the purposes of the discard rate and closing beds. Consistent
with the advice of ScallopRAG on 26 June 2013, the size for the discard rate for the
proposed Harvest Strategy is 85 mm. [Confirm this fits with recent research]
Q: Does the proposed Harvest Strategy take spawning stock in State
jurisdictions into account?
A: No. Although scallop beds in one jurisdiction may affect recruitment in another
jurisdiction, the relationship is not simple and predictable.11
Q: Does a TAC have to be set each season?
A: Yes. This is required under the Bass Strait Central Zone Scallop Fishery
Management Plan 2002 (as amended).12
Q: Can the TAC change in the middle of the season?
A: Yes, but only as described under the ‘Harvesting Starting Point’ option above.
Q: What is the impact on quota trading of a change in TAC mid-season?
A: Any in-season changes under the ‘Harvesting Starting Point’ option would be
expected to be reflected in the quota lease prices.
Q: Can you change from the Harvesting Starting Point option to the Detailed
Survey Option in the middle of a season?
A: No.
9
Semmens (2013) at pages 1, 2 and 86.
See Haddon (2006) at page 164 favouring management regimes protecting juvenile beds.
11
Semmens at page 1.
12
Section 27(1).
10
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
22
Q: When would the season start?
A: As is currently the case, the default fishing season is 1 April to 31 December
however AFMA may determine different dates in any year.
Fishing start and end dates within the fishing season may be agreed by the CoManagement Committee based on factors such as scallop condition and available
research on spawning and settlement times.
Q: What happens if there is a die off?
A: The fishery may be closed under the ‘Fishery Closed’ option above.
Q: What happens if unsafe levels of Paralytic Shellfish Toxin (PST) are
identified?
A: Consistent with current arrangements, if PST testing shows levels between
0.4mg/kg and 0.8mg/kg, AFMA will contact BSCZSF concession holders and
processors warning high PST levels have been recorded. Should any results exceed
0.8mg/kg, the area will be closed.
23
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ATTACHMENT 4 – SCALLOPRAG HARVEST
STRATEGY PROPOSAL
Revised Bass Strait Central Zone Scallop Fishery harvest strategy proposal for
the 2014 season
Exploratory fishing period
1. Prior to considering opening the fishery for the 2014 season exploratory fishing
will be undertaken to gather data to assess the status of the stock in the fishery.
2. Data will be obtained by issuing research permits, to all those who apply, from 1
April 2014 until the opening date of the 2014 season.
3. Fishers may be required to collect length frequency data using electronic
measuring boards (when available) in accordance with the research data
requirements developed by IMAS to provide ongoing data to assess and manage
the fishery.
4. Fishing under the research permits issued will be restricted to competitive Total
Allowable Catches (TACs) by area. Attachment A shows the locations and
competitive TAC settings for the 5 zones.
5. Once potential commercially viable bed or beds are located an IMAS research
officer may be placed aboard a commercial vessel to transect the area. Data from
transecting will be used by IMAS to determine the biomass estimate of the bed/s.
6. IMAS will produce a report incorporating a biomass estimate and length frequency
distribution of any scallop beds identified as being commercially viable.
Open the fishery for the 2014 season
7. Should the IMAS report illustrate that a scallop bed/s (not more than 2 scallop
beds) containing at least 500 tonnes in total of scallops of a size limit of 85mm of
high density13 be located the fishery will be opened to fishing for the season.
Tier 2 - Harvesting starting point
8. Should the criteria as detailed in paragraph 6 be met the fishery will be opened
under the following arrangements:
- An area/s (not more than 2 scallop beds) containing not less than 500 tonnes
biomass of scallops of a size limit of 85mm of high density will be closed to
fishing for the entire season.
- The area of the fishery not closed to fishing will be opened for the entire
season with a TAC of 1000 tonnes.
- Should 800 tonnes of the 1000 tonne TAC set be caught during the season
the TAC will be increased to 1500 tonnes if required.
13
Criteria for high density to be determined by IMAS as part of current research prior to the
commencement of the 2015 season.
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
24
-
-
Should 1300 tonnes of the 1500 tonne TAC set be caught during the season
the TAC will be increased to 2000 tonnes if required.
Scallop beds fished that do not meet the discard rate of less than 20 per cent
of scallops less than 85mm in size will be closed to fishing under voluntary
arrangements applied by industry.
Fishers are encouraged to collect length frequency data using electronic
measuring boards (when available) in accordance with the research data
requirements developed by IMAS to provide ongoing data to assess and
manage the fishery.
Tier 1 – TAC above 2000 tonnes
9. Should the IMAS report illustrate that a scallop bed/s (not more than 2 scallop
beds) containing at least 1000 tonnes of scallops of a size limit of 85mm of high
density be located the fishery will be opened under the following arrangements:
- An area/s (not more than 2 scallop beds) containing not less than 1000
tonnes biomass of scallops of a size limit of 85mm of high density will be
closed to fishing for the entire season.
- An area/s of the fishery will be opened to fishing with a TAC of at least 2000
tonnes.
- Scallop beds fished that do not meet the discard rate of less than 20 per cent
of scallops less than 85mm in size will be closed to fishing under voluntary
arrangements applied by industry.
- Fishers are encouraged to collect length frequency data using electronic
measuring boards (when available) in accordance with the research data
requirements developed by IMAS to provide ongoing data to assess and
manage the fishery.
10.
The arrangements as detailed in paragraphs 1 to 8 will be applied for the
2014 season in the initial instance. Following the completion of the 2014 season a
review of the arrangements in paragraphs 1 to 8 will be undertaken and
consideration will be given to applying these arrangements on a permanent basis.
25
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au
ATTACHMENT A – Draft BSCZSF research permit zones and TACs
26
Chair Bill Talbot c/- A/g Executive Officer Kylie Tonon, AFMA, Box 7051, Canberra BC, ACT 2610
Tel: (02) 6225 5373 Fax: (02) 6225 5400 Email kylie.tonon@afma.gov.au