Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Providing a submission in response to the paper
The Department of Primary Industry and Fisheries is seeking feedback on the proposals
canvassed in this paper, Proposed Future Management Arrangements for the Northern
Territory Commercial Coastal Line Fishery.
To assist in streamlining the feedback process and to ensure that your comments are
given due consideration, you are encouraged to clearly indicate your support, or
otherwise, for specific proposals and in particular, suggest alternative solutions to
address issues where you disagree with a proposal.
Copies of this document are available on the Department of Primary Industry and
Fisheries, website http://www.nt.gov.au/d/Fisheries
Submissions can be mailed to:
Fisheries
Department of Primary Industry and Fisheries
GPO Box 3000
Darwin NT 0801
Responses by fax can be sent to 08 8999 2065 or via email to fisheries@nt.gov.au
Closing date for comments is COB Friday 18th, January 2013.
Should you wish to discuss any aspects of the paper please contact Fisheries
by telephoning (08) 8999 2144.
FRONT COVER IMAGE (INSET): Courtesy of Northern Territory Seafood Council
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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This paper details proposed new management arrangements to help facilitate the
sustainable management of the Northern Territory Commercial Coastal Line Fishery.
The paper is divided into the following sections:
Section 1: Introduction:
This section provides a summary of the industry and the background to the development
of this paper.
Section 2: Sustainable management of coastal reef fish stocks in the greater
Darwin area
This section provides an overview of the current sustainability concerns relating to coastal
reef fish stocks in the greater Darwin area and the proposed management strategies to
address the issue.
Proposed Management Strategy for the Commercial Coastal Line Fishery
Broadly, management of the commercial sector must:
 control the harvest level of target and by-product species to sustainable levels;
 promote economic efficiency and optimise commercial benefits to the NT;
 share the catch within and between sectors;
 be cost effective.
The following draft management proposal has been developed taking these objectives
into account. The strategy proposes that two management zones are established for the
commercial sector, incorporating:

a small scale operation in the greater Darwin area with a limited number of operators,
clear entry criteria and catch/effort limits;

an outer regional zone incorporating the remaining area of the fishery where all
licensees are permitted to operate.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Section 1: Introduction
The commercial Coastal Line Fishery operates in the near-shore waters of the Northern
Territory (NT) and harvests a wide range of species, mostly using hook and line gear.
The fishery mainly targets black jewfish (Protonibea diacanthus) and golden snapper
(Lutjanus johnii) to a lesser extent. Key secondary species include emperors, cods and
other snappers.
The commercial fishery area extends from the high water mark to 15 nautical miles (nm)
from the low water mark along the NT coast.
Coastal Line Fishery licensees are permitted to use several gear types. Vertical lines,
cast nets (for bait only), scoop nets or gaffs can be used from the high water mark out to
2 nm from the low water mark. Drop lines and a maximum of five fish traps per licence
may also be used from 2 nm out to the 15 nm limit. Commercial fishers are permitted to
use up to five hooks per vertical line, but most choose to use only two. They may also
use up to 40 hooks per drop line, but typically use from six to 20. No operators in the
fishery currently use fish traps.
There are 53 commercial coastal line licences however the number of active licences
varies each year. In 2011, there were 13 licences active in the fishery.
A “two-for-one” (2:1) licence reduction scheme is presently in place for the fishery as a
means of reducing excess fishing capacity. The licence reduction scheme operates by a
person owning or buying two non-transferable restricted licences and surrendering them
to government for the grant of one fully transferable, unrestricted licence. Of the 53
licences currently issued, 17 are restricted and 36 are unrestricted.
The total reported catch for the fishery in 2011 was 146 tonnes and was valued at
approximately $450 000. Of this total, some 140 tonnes were black jewfish. The catch of
byproduct species in the fishery is minimal given the targeted nature of the fishery and
the use of line tackle.
Most fish are sold fresh on ice, usually gilled and gutted, filleted or trunked (whole fish
from which the head and viscera have been removed). The swim bladder of black jewfish
is also sold as a high-value product.
The fishery has a strong local consumer interface with 100% of the product sold to local
wholesalers which then provide consistent fresh product to local retail, restaurant and
tourism markets. However, due to limited local demand, a large proportion of this product
is on-sold to southern markets. Nonetheless, 83% of the total jewfish consumed in local
seafood dining venues comes from the Northern Territory.
An ecological risk assessment undertaken on the Coastal Line Fishery has identified a
number of key target species in the greater Darwin area, including black jewfish and
golden snapper, as being at high risk of over-exploitation and in need of management
action.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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While data on the status of stocks is limited, it is likely that total catches are already at, or
above, maximum sustainable levels in the greater Darwin area. The Coastal Line Fishery
Management Advisory Committee (CLFMAC), comprised of key commercial, recreational,
charter and departmental representatives, recommended limiting any further increases in
catch in the Darwin zone while more permanent management strategies are developed
for all sectors. For the commercial industry, harvest trigger points for black jewfish (185t)
and golden snapper (9t) have been established in the Darwin zone to achieve this shortterm objective.
The aim of this document is to seek input and feedback on a proposed new long-term
management strategy for the commercial sector, or any alternative options, in order to
help determine the best way forward for future management of the fishery.
It is important to acknowledge that both the recreational and fishing tour operator (FTO)
sectors are also looking at ways to manage their respective catches to ensure the
ongoing sustainability of the fishery. Whilst the current situation is not the result of any
one sectors’ activities, it is every sector’s concern, as everybody wants to be able to
continue to catch our valuable reef fish stocks into the future.
Ultimately, catches must be limited across all sectors (specifically in the Darwin zone) to
ensure their sustainable use. The current management arrangements cannot ensure the
sustainability of the fishery, and a new strategy is required. The very nature of the
changes required means that some fishers will have to modify their current fishing
practices. Unfortunately there is no one approach that will best suit everyone’s individual
circumstances and reaching consensus may not be possible.
It is important that management arrangements for the commercial sector help to ensure
the sustainability of stocks, while providing quality fish for consumers and viability for
those fishers operating in the fishery.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Section 2: Sustainable management of coastal reef
fish stocks in the greater Darwin area
The purpose of this section is to develop an effective commercial management
framework to address coastal reef fish sustainability concerns in the greater Darwin
area. The key issues that need to be tackled through this process are:

Coastal reef fish species in the greater Darwin area are currently subject to
unsustainable fishing pressure from all sectors.

Current commercial sector management arrangements are not equipped to
address reef fish sustainability issues.

Latent effort within the commercial sector is regarded as a critical risk to reef fish
sustainability.
In light of these issues, it is therefore essential that effective commercial
management mechanisms must now be introduced.
Sustainability Issues
While most fish stocks in the NT are healthy, the sustainability of several popular reef
fish species in the Darwin Area1 has come under threat in recent years. Reef fish are
now being targeted more efficiently than ever before by all sectors due to advances
in fishing technology, enhanced information sharing and improvements in access to
popular areas. Biological traits such as a susceptibility to barotrauma when caught in
water depths greater than 10 metres is also likely to exacerbate the problem as most
reef fish species suffer serious damage and are unlikely to survive release. This
factor is a particular issue for the recreational and FTO sectors of the fishery.
An ecological risk assessment undertaken by the Coastal Line Fishery Management
Advisory Committee identified black jewfish and golden snapper at high risk of
overexploitation particularly near population centres such as Darwin. More recently
Professor Carl Walters, an internationally-renowned fishery assessment scientist
from the University of British Columbia, analysed the status of our fish stocks.
Through his work, Professor Walters assessed that golden snapper in particular are
overfished and require immediate remedial action while jewfish are at least fully
utilised (at high risk of being over fished). Based on his modelling and current catch
levels, scientific advice suggests a reduction in catch for golden snapper of 30% and
a 15% reduction for black jewfish in the greater Darwin area necessary as a
minimum to bring catches back to sustainable levels. Insufficient data are available to
extend Professor Walters’ assessment to a range of other reef species (e.g. grass
emperor and stripey snapper), however many reef species exhibit similar risk
characteristics to overfishing and caution would advocate their inclusion in any
management action taken.
1
Darwin Harbour and waters within a 150 km radius of Darwin
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Ensuring the long term sustainability of key reef species in the face of advancing fish
finding technology, increasing fishing effort and high rates of catch and release
fishing in the recreational and FTO sectors is an immediate challenge that must be
addressed. Not acting today to promote sustainability will raise the likelihood that
much stronger management measures (such as seasonal or area closures) will be
needed in the future to assist the recovery of stocks following significant depletion.
The following chart illustrates the impacts of the commercial, recreational and FTO
sectors on key reef fish stocks in the Darwin area in 2010 (see Figure 1 below).
While the recreational sector catches significantly more golden snapper, the
commercial fishery harvests more black jewfish than other sectors. On the basis of
this information it is essential that current management strategies for all sectors are
revised to protect our valuable reef fish stocks in heavily fished areas.
Figure 1: Total catch of golden snapper and black jewfish by each sector in 2010.
(Source: 2009/2010 recreational fishing survey data; Fisheries logbook data).
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Clearly recreationally-based fishing activities need to feature heavily in the
development of new management arrangements to address coastal reef fish
sustainability concerns. To this end Fisheries have drafted a discussion paper in
consultation with representatives of the recreational and charter sectors (i.e. AFANT
and the NTGFIA) on a review of recreational possession limits for vulnerable coastal
reef species. Potential changes discussed include new species specific possession
limits, vessel limits and the introduction of a reduced general reef fish possession
limit. Comments provided to AFANT by its members suggest broad support for
reductions in possession limits for many species in response to both perceived
reductions in fishing quality and changing fishing ethics focused on quality
recreational fishing experiences.
Through this process it was also acknowledged that the single greatest beneficial
impact recreational anglers and FTOs can have on our reef fish stocks is to limit the
catch and release of reef fish caught from deep water. Consequently Fisheries have
commenced an intensive targeted public awareness campaign to inform recreational
anglers and FTOs about the vulnerable nature of our reef stocks and encourage a
change in fishing practices to minimise the catch and release of fish susceptible to
barotrauma.
While work is underway to reduce the impacts on reef fish stocks from the
recreational and FTO sectors, it is imperative that current commercial management
arrangements are also reviewed to provide a framework capable of addressing these
and any future sustainability issues that may arise.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Proposed Management Strategy for the
Commercial Coastal Line Fishery
Typically a combination of tools is required to sustainably manage vulnerable fish
stocks. Taking this into consideration, Fisheries preferred approach is to create a
management zone complemented with a combination of limited licence entry and
catch controls. This will allow for a targeted approach using a package of the best
available tools to manage catch in the greater Darwin area where reef fish stocks are
at risk. The benefit in using this approach is it deals with sustainability concerns
attributable to future growth in reef fishing effort and therefore provides the
framework for a long term solution. A similar proposal is being recommended to the
FTO sector for the same reasons.
Broadly, management of the commercial sector must:

control the harvest level of target and by-product species to sustainable levels;

promote economic efficiency and optimise commercial benefits to the NT;

share the catch within and between sectors;

be cost effective.
The following draft management proposal has been developed taking these
objectives into account. The strategy proposes that two management zones are
established for the commercial sector, incorporating:

a small scale operation in the greater Darwin area with a limited number of
operators, clear entry criteria and catch/effort limits;

an outer regional zone incorporating the remaining area of the fishery where all
licensees are permitted to operate.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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In implementing these new management arrangements, a three phased
approach is suggested comprising:
Phase 1
Strategy 1: Finalisation of the ‘two-for-one’ (2:1) licence reduction scheme.
The 2:1 licence reduction scheme currently in place in the fishery will be brought to
an end, resulting in all licences becoming transferable. This will remove the current
restriction on some licensees to sell or lease their licence and will provide all
licensees with greater certainty and the incentive to look at the long-term viability of
the fishery.
Strategy 2: Establish a Greater Darwin Fish Management Zone (GDFMZ)
Establishing a Greater Darwin Fish Management Zone (GDFMZ) that encompasses
waters of the fishery within the area bounded by a line commencing at Cape Ford,
running northerly to above the Tiwi Islands, then easterly to Vashon Head (refer to
attachment 1) would allow for the implementation of management tools to sustainably
manage coastal reef fish stocks in the area of concern.
The area proposed is the same as that currently in place for interim commercial catch
arrangements. The boundary has been chosen as it encompasses key aggregation
sites for jewfish and recognises the majority of locations where commercial activity
currently occurs. Furthermore, the establishment of this zone will allow for more
effective, targeted management, based on our understanding of distribution and
abundance of stocks and usage patterns.
The Tiwi Islands are included as they are likely to be an important source area for
mature breeding fish of some species (e.g. golden snapper) that provide the
reproductive base for local populations. Failure to include these areas in a new zone
would risk exacerbating the problem of stock depletion in the greater Darwin area
rather than solve it. Unless evidence is brought to bear that the reef fish of the Tiwi’s
are not a source population for the region, management will take a precautionary
approach and maintain the islands within the GDFMZ.
The proposed boundary also takes into account areas that are receiving increased
levels of fishing pressure from all sectors, as fishers travel further than they have
previously to maintain good catches of fish.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Strategy 3: Limiting and allocating access to the GDFMZ
It is proposed that allocation of access to the zone would be based on operators
whose average catch over the last five years (2006 – 2010) is greater than nine
tonnes (calculated using criteria proposed by industry).
Catch data indicates there is a clear distinction between active licences that would be
highly dependent on the fishery, and others that have reported little or no activity and
may not rely heavily on the fishery for an ongoing income.
It is considered a licensee has a relative level of dependency on the fishery if the
catch history of a licence (as recorded against fishery logbook returns) indicates an
annual average harvest of more than nine tonnes of fish, calculated using criteria
provided by industry. In order to optimise economic efficiency in the industry and
reduce the impact on the commercial supply and price of fresh quality reef fish, it is
considered appropriate to grant access to the GDFMZ to these dependent operators.
Permitting access using the above criteria will result in a total of about eight licences
having access to the GDFMZ. It will also aid in controlling the distribution of fishing
effort, managing latent effort, and will result in improved (i.e. more exclusive) security
for those who have utilised the fishery.
It is noted the catch history of a licence resides with the licence and its owner (i.e. not
with individual fishermen who may have leased/operated the licence).
An alternative option considered was to implement catch/effort limits in the greater
Darwin zone across all licences in the fishery. For example, in the case of catch
limits, all 53 licences could equally be allocated a portion of the current catch limit of
185t of jewfish, meaning they would be permitted to harvest about 3.5t each. This
option was not preferred because of the impacts it would have on fishery efficiency,
competition, continuity of fish supply and stewardship. Furthermore, any future
reduction in catch limits for sustainability reasons would exacerbate this problem.
It is noted that in situations where exceptional circumstances exist, allocation may be
considered on a case by case basis. In such situations technical assessments will
be undertaken and based on individual merit.
Strategy 4: Establishment of an outer Regional Management Zone
incorporating the remaining area of the fishery.
It is proposed the remaining area of the fishery will be accessible to all licensees and
will allow for continued operation and future growth in fishing activity in outer regions.
Operating further afield will undoubtedly change current fishing practices and
increase operating costs, however there may be potential for future regional
development opportunities.
Proposed Future Management Arrangements for the Northern Territory Coastal Line Fishery
FOR PUBLIC COMMENT
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Phase 2
Strategy 5: Management of catch within the GDFMZ via catch or effort limits for
permitted operators.
Based on knowledge of sustainable stock levels, catch/effort limits will aim to
maintain the total commercial jewfish and golden snapper harvests at scientifically
determined precautionary levels. Whilst commercial catches are currently capped at
185t for jewfish and 9t for golden snapper, these limits may need revision (up or
down) with the acquisition of better information on the status of stocks and as fishery
conditions change.
It is envisaged this will be done via targeted consultation with those operators
granted access to the GDFMZ. Options will include constraining catch by limiting the
total amount of fish that can be caught in the zone, or limiting effort by constraining
the number of days that can be fished in the zone. Alternative gear allowances may
also be examined at this stage.
Management goals will aim to provide a level of certainty for operators and a
performance measurement system will be developed to ensure that appropriate
biological performance and fishery status indicators are measured. This will include
agreed management actions to be undertaken when limit reference points are
triggered.
A number of locations within the GDFMZ are high use recreational fishing areas and
a strategy to minimise conflict between sectors is also likely to be necessary. During
previous discussions industry has acknowledged the merit of resolving resource
allocation/access issues for the long-term. A closure system based on industry input
to maximise long-term security and minimise short-term impacts to commercial
operations may be examined at this stage.
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FOR PUBLIC COMMENT
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Phase 3
Strategy 6: Development of strategic management arrangements for the outer
Regional Management Zone
Future management measures for the outer area of the fishery will be necessary to
ensure the ongoing sustainable harvest of resources from these waters. With
impending growth and development in the Territory, stocks in the outer region of the
fishery will be subject to increasing pressure, and implementation of an appropriate
long-term management strategy is required. Such a strategy may incorporate further
zoning to identify specific management areas and that zonation would be informed by
detailed stock structure analyses.
Consultation Process
Your views are currently sought on the proposed management strategy (or
alternative options) to ensure the overall catch from the commercial fishery remains
within sustainable limits. Please refer to Attachment 1 to view map of the proposed
Greater Darwin Fish Management zone.
Please submit your response to the Department of Primary Industry and Fisheries by
COB Friday 18th, January 2013.
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FOR PUBLIC COMMENT
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Attachment 1:
Greater Darwin fish management zone
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FOR PUBLIC COMMENT
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