ASSESSMENT REPORT TO THE
DEPARTMENT OF THE ENVIRONMENT
Small Pelagic Fishery
July 2015
This report has been prepared by the Australian Fisheries Management Authority for
consideration by the Department of the Environment in relation to the accreditation of the
Small Pelagic Fishery under the Environment Protection and Biodiversity Conservation Act
1999.
Contents
1.
2.
INTRODUCTION............................................................................................... 3
DESCRIPTION OF THE FISHERY ................................................................ 3
2.1. Fishing area .................................................................................................. 3
2.2. Fishing gear and method ............................................................................. 5
2.3. Target species ............................................................................................... 6
2.4. Allocation between sectors .......................................................................... 6
2.5. Governing legislation/fishing authority ..................................................... 6
2.6. Changes to management arrangements ..................................................... 7
2.7. Status of export approval/accreditation under the EPBC Act ................ 8
3. MANAGEMENT ................................................................................................ 8
3.1. Management arrangements ........................................................................ 8
3.2. SPF Management Plan ................................................................................ 9
3.3. Consultation processes................................................................................. 9
3.4. Harvest Strategy......................................................................................... 10
3.5. Harvest Strategy review ............................................................................ 10
3.6. Performance of the fishery ........................................................................ 12
3.7. Description of cross-jurisdictional management arrangements ............ 12
4. RESEARCH AND MONITORING ................................................................ 13
4.1. Research undertaken in the SPF .............................................................. 13
4.2. Monitoring programs ................................................................................ 16
5. CATCH AND EFFORT ................................................................................... 16
5.1. Total catch of target species ...................................................................... 16
5.2. Bycatch ........................................................................................................ 18
6. STATUS OF TARGET STOCKS ................................................................... 20
6.1. Resource concerns ...................................................................................... 20
6.2. Results of recent stock assessments .......................................................... 20
7. INTERACTIONS WITH PROTECTED SPECIES ...................................... 20
8. IMPACTS OF THE FISHERY ON THE ECOSYSTEM ............................. 21
9. PROGRESS IN IMPLEMENTING FISHERY ASSESSMENT
CONDITIONS AND RECOMMENDATIONS ............................................. 23
10. REFERENCES .................................................................................................. 27
2
1. Introduction
This report details changes in the Commonwealth Small Pelagic Fishery (SPF) since
the Annual Report to the Department of the Environment: Small Pelagic Fishery 2013
was provided to the Department of the Environment on 20 January 2014, up until 30
June 2015. It includes management responses to recommendations made as part of
Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act)
assessments, and how management arrangements address the Guidelines for Assessing
the Ecological Sustainability of Commercial Fisheries – 2nd Edition (the Guidelines).
The Small Pelagic Fishery Management Plan 2009 (the Management Plan) was
determined by AFMA on 2 November 2009, and was approved by the then Minister
for Agriculture, Fisheries and Forestry on 30 December 2009. The Management Plan
was amended in 2014 to ensure consistency with the Fisheries Management
Regulations 1992, which requires quota species to be disposed of to fish receiver
permit holders.
Product derived from the SPF is currently included in the List of Exempt Native
Specimens under Part 13A of the EPBC Act until 29 October 2015. The accreditation
of the Management Plan under Part 13 of the EPBC Act also expires on 29 October
2015.
In early 2015, an Australian company proposed to operate a large mid-water trawler
freezer vessel in the SPF. This vessel, the 95-metre FV Geelong Star, commenced
fishing in April 2015 and is currently operating in the fishery. There are also two
other vessels operating in the fishery.
2. Description of the Fishery
2.1. Fishing area
The SPF extends from the Queensland/New South Wales border, typically outside 3
nautical miles, around southern Australia to a line at latitude 31° south (near Lancelin,
north of Perth). The SPF is divided into two zones east and west of Tasmania at
146°30’ east (Figure 1) to enable stock-based management arrangements.
Since Statutory Fishing Rights (SFRs) took effect under the Management Plan on 1
May 2012, operators are required to cover any catches of target species with quota.
3
Figure 1. Map of the SPF and Eastern/Western sub-area management zones.
4
2.2. Fishing gear and method
Species in the SPF are targeted using purse seine (Figure 2) and mid-water trawl (Figure 3)
methods. Jigging was trialled in the 2013-14 fishing season but has not been implemented as
a permanent fishing method.
Figure 2. Purse seine gear.
Figure 3. Mid-water trawl gear. The minimum mesh size for midwater trawl nets is 30 millimetres.
5
2.3. Target species
The target species in the SPF are:




Australian sardine (Sardinops sagax)
Blue mackerel (Scomber australasicus)
Jack mackerel (Trachurus declivis, T. murphyi)
Redbait (Emmelichthys nitidus).
The Australian Bureau of Agricultural and Resource Economics and Sciences (ABARES)
Fishery Status Report 2013-14 lists all the target species of the SPF except redbait (western
stock) as not overfished and not subject to overfishing. Redbait (western stock) is listed as
not being subject to overfishing and uncertain in terms of whether it is overfished due to
limited information on biomass.
Refer to Section 5.2 regarding bycatch. Refer to Section 7 regarding interactions with
threatened, endangered and protected (TEP).
2.4. Allocation between sectors
Fishers need to hold quota statutory fishing rights (SFRs) allocated by AFMA to fish in the
SPF. SFRs allow fishers to catch the fish species that are under quota. SFRs are transferable
between fishers. As of 5 May 2015 there are 153 SFR holders and a total of 61 047 305 SFR
units in the fishery (Table 1).
Table 1. Quota SFR allocations in the SPF as of 5 May 2015.
Number of
SFR Unit Name
SFR holders
Australian sardine SFR - SPF
3
Eastern sub-area blue mackerel SFR - SPF
25
Eastern sub-area jack mackerel SFR - SPF
25
Eastern sub-area redbait SFR - SPF
25
Western sub-area blue mackerel SFR - SPF
25
Western sub-area jack mackerel SFR - SPF
25
Western sub-area redbait SFR - SPF
25
Quota SFR
Units
3 000 001
5 770 594
11 170 217
11 866 489
9 724 000
11 396 002
8 120 002
Current quota ownership and holdings can be found on the AFMA website at:
 http://www.afma.gov.au/fisheries-services/concession-holders-conditions/.
2.5. Governing legislation/fishing authority
The SPF is managed under the Management Plan established under the Fisheries
Management Act 1991. Fishing authority in the SPF is afforded by the holding of quota SFRs
allocated by AFMA. These rights authorise the taking of a determined amount of target
species each season in accordance with conditions specified on the concession and associated
legislation and policies. A boat must be nominated to an SFR in order to operate in the
fishery.
6
2.6. Changes to management arrangements
The changes to management arrangements in the SPF since the previous status report was
provided to the Department of the Environment on 20 January 2014 are listed below:

Final (Small Pelagic Fishery) Declaration 2012
The Final Declaration was made under the EPBC Act on 19 November 2012 and
expired on 18 November 2014. The Final Declaration prohibited the use of mid-water
trawl with a vessel greater than 130 metres in length, an on-board fish processing
facility, and storage capacity greater than 2000 tonnes while an expert panel assessed
the environmental impacts of the activity.
The First Expert Panel was established under the Final Declaration to assess the
environmental impacts of mid-water trawl factory freezer vessels greater than 130
metres in length operating in the SPF. The First Expert Panel Report was released by
the Department of the Environment on 19 November 2014. AFMA considered the
findings of the report in reviewing management arrangements in the SPF for the
2015-16 fishing season.

Final (Small Pelagic Fishery) Declaration (No. 2) 2013
The second Final Declaration was made under the EPBC Act on 26 April 2013 and
expired on 24 April 2015. The Second Expert Panel was established under the second
Final Declaration to assess the impacts of mid-water trawl vessels in the SPF with a
hold storage capacity of 1600 tonnes or greater that may undertake transhipment
activities. The Second Expert Panel Report was released by the Department of the
Environment on 24 April 2015. AFMA considered the findings of the report in
reviewing management arrangements in the SPF for the 2015-16 fishing season.

SPF fishing concessions updated to require all mid-water trawlers to have Vessel
Management Plans (VMPs) on 1 May 2013
Conditions on SPF fishing concessions were updated to require all mid-water trawl
vessels to have an AFMA-approved VMP before commencing fishing on 1 May
2013. VMPs are comprehensive boat-specific plans to minimise the risk of
interactions with protected species (e.g. seabirds, seals and dolphins). VMPs contain
both recommendations and mandatory measures that must be employed by the boat to
ensure that all reasonable steps are taken to minimise its impact on protected species.
Fishing concessions and conditions for operation for the SPF can be found on the
AFMA website at:
o http://www.afma.gov.au/fisheries-services/concession-holders-conditions/.

Updates to Small Pelagic Fishery Management Plan 2009 (revised 2014)
The Management Plan was amended in 2014 to ensure consistency with the Fisheries
Management Regulations 1992, which requires quota species to be disposed of to fish
receiver permit holders.

Fisheries Management Amendment (Super Trawlers) Regulation 2015
On 24 December 2014 the Australian Government announced intentions to ban
vessels greater than 130 metres in length from Australian waters. The amendment to
the Fisheries Management Regulations 1992 was enacted on 16 April 2015. The
amendment prevented all boats over 130 metres in length from undertaking fishing
related activities within the Australian Fishing Zone.
7

Revision of the SPF Harvest Strategy 2008 (revised 2015)
The SPF Harvest Strategy was revised in April 2015, following a review conducted
by CSIRO (Smith et al. 2015). The 2015 Harvest Strategy will be further reviewed in
time for the 2016-17 fishing season. Further information on the revision of the SPF
Harvest Strategy is described in Section 3.5.

Small Pelagic Fishery (Closures) Direction No. 1 2015
The SPF Closure Direction came into effect under section 41A(2) of the Fisheries
Management Act 1991 on 8 May 2015 and implemented temporal and spatial closure
arrangements to prevent unacceptable dolphin mortalities. The direction applies to
concession holders fishing in the SPF using the mid-water trawl fishing method.
Arrangements included a ban on night fishing and fishing zone closures. Zone
closures are triggered in the event of the death of one or more dolphins as a result of
mid-water trawl operations and are enforced for a period of six months from the date
of the interaction.
The management arrangements for the SPF are described in Section 3.
2.7. Status of export approval/accreditation under the EPBC Act
The SPF has operated under a series of short term Wildlife Trade Operation Declarations
(WTO), List of Exempt Native Specimens approvals, and management plan accreditations
under Part 13 and 13A of the EPBC Act since 29 November 2004.
Product derived from the SPF is included in the List of Exempt Native Specimens under Part
13A of the EPBC Act until 29 October 2015. The accreditation of the Management Plan
under Part 13 of the EPBC Act also expires on 29 October 2015.
3. Management
3.1. Management arrangements
The SPF is managed through input and output controls as prescribed in the:






Fisheries Management Act 1991 and associated amendments and temporary orders
Fisheries Management Regulations 1992 and associated amendments and temporary
orders
Small Pelagic Fishery Management Plan 2009 (the Management Plan) and
associated amendments, directions and determinations
SPF Harvest Strategy developed in accordance with the Commonwealth Fisheries
Harvest Strategy Policy 2007
Small Pelagic Fishery (Closures) Direction No. 1 2015
Conditions on quota SFRs (including VMPs for mid-water trawl vessels).
8
3.2. SPF Management Plan
The Management Plan outlines management arrangements for the SPF. The objectives of the
Management Plan are to:






manage the SPF efficiently and cost-effectively
exercise the precautionary principle regarding the impact of fishing activities on nontarget species and the long-term sustainability of the marine environment
ensure accountability to the fishing industry and Australian community in the
management of the SPF
achieve government targets for cost recovery
maximise economic efficiency in the exploitation of the resources of the SPF
achieve the best use of the living resources of the Australian Fishing Zone (AFZ).
The SPF moved to a quota management system on 1 May 2012. Access to the SPF is
provided through quota SFRs allocated by AFMA under the Management Plan. Quota SFRs
authorise the taking of a pre-determined amount of SPF target species quota. SFRs are fully
tradeable, allowing operators to increase or decrease the amount of quota they are entitled to
take in a season. No further quota SFRs will be granted for the SPF.
Along with conditions on quota SFRs, the Management Plan details concession holders’
obligations when fishing in the area of the fishery. AFMA also has the right to make closure
directions and formulate TAC determinations under the Management Plan and the Fisheries
Management Act 1991. Copies of the Management Plan are available from the
Commonwealth of Australia Law (ComLaw) website at:
 http://www.comlaw.gov.au/Details/F2014C01077.
The effectiveness of the Management Plan was reviewed by the South East Management
Advisory Committee (SEMAC) in May 2014. A summary of the advice is available in the
minutes of the meeting at:
 http://www.afma.gov.au/wp-content/uploads/2014/09/Minutes_SEMAC_15.pdf.
3.3. Consultation processes
The main consultative arrangements for the SPF involved the South East Management
Advisory Committee (SEMAC) and the Small Pelagic Fishery Resource Assessment Group
(SPFRAG). The SPFRAG provided advice on the status of SPF stocks and the impact of
fishing on the marine environment to the SEMAC and the AFMA Commission. SPF TACs
are set by the AFMA Commission following consideration of advice from SPFRAG,
SEMAC and AFMA Management.
The members of the SPFRAG completed their term on 30 June 2015. AFMA is taking the
opportunity to review how the AFMA Commission receives scientific advice regarding the
SPF and how stakeholders are engaged in that process.
Recent consultative events include:

The Small Pelagic Technical Workshop was hosted by the South Australian Research
and Development Institute (SARDI) in Adelaide on 14-18 July 2014. The workshop
was held to review Australia’s SPF science and benchmark both the SPF and the
South Australian Sardine Fishery against global standards. The workshop was
attended by internationally recognised scientists, and concluded that the science
underpinning Australia’s management of the fisheries was robust, precautionary and
in line with international best practice guidelines. The workshop included a
stakeholder forum for recreational fishing and conservation stakeholders.
9

The First SPF Stakeholder Forum for conservation and recreational fishing
stakeholders took place in Hobart on 17 October 2014. The purpose of the forum was
to provide information on current management and science in the SPF, and to engage
with conservation and recreational fishing stakeholders about the possible future
management of the fishery. The forum included presentations on management,
including work undertaken on localised depletion, research examining harvest rates
applied under the harvest strategy and Daily Egg Production Method (DEPM)
surveys.

The Second SPF Stakeholder Forum for conservation and recreational fishing
stakeholders took place in Hobart on 24 March 2015. The purpose of the forum was
to provide information on current management and science in the SPF, and to engage
with conservation and recreational fishing stakeholders about the possible future
management of the fishery. The forum also included presentations responding to
stakeholder concerns regarding the operations of a new mid-water trawl vessel in the
SPF fishery.

The SPF Technical Marine Mammal Mitigation Workshop took place in Melbourne
on 25-26 June 2015. The workshop discussed options for minimising marine
mammal interactions from mid-water trawl operations in the SPF and identified
research gaps. It was attended by fishing stakeholders, including trawler operators,
government officials and marine life experts, and was hosted by the Fisheries
Research and Development Corporation (FRDC).
Consultation also occurs on an ongoing basis with recreational fishers, Commonwealth
government departments, state governments and environmental non-government
organisations. AFMA holds 2-3 recreational fishing forums and environmental forums
annually.
3.4. Harvest Strategy
The Harvest Strategy for the SPF outlines a stock-based approach that seeks to optimise
stock sustainability and economic yield. It reflects obligations under the Commonwealth
Fisheries Harvest Strategy Policy and Guidelines. The Harvest Strategy primarily details a
series of decision rules to determine TACs for target species, in line with the estimated
biomass of each stock. The Harvest Strategy is available at:
 http://www.afma.gov.au/wp-content/uploads/2014/11/SPF-Harvest-Strategy20152.pdf.
3.5. Harvest Strategy review
The original SPF Harvest Strategy, published in 2008, applied the same maximum harvest
rate to all target species in the SPF. This was reviewed in 2015 to improve consistency with
the Commonwealth Harvest Strategy Policy and Guidelines.
The review of the SPF Harvest Strategy was informed by new research (Smith et al. 2015).
The review used population modelling to examine the effects of various harvest rates on the
target species in the SPF, and suggested that harvest rates for the SPF should be speciesspecific.
Following consideration of the new research and advice from the SPFRAG, SEMAC and
AFMA Management, the AFMA Commission agreed to revise the SPF Harvest Strategy in
April 2015.The new Harvest Strategy will be reviewed again in 2016, and then at least once
every three years to ensure its ongoing relevancy and appropriateness over time.
10
The revised SPF Harvest Strategy framework incorporates tier levels with different
information needs and harvest control rules:

Tier 1 is based on a quantitative stock assessment using Daily Egg Production
Method (DEPM) surveys and an annual fishery assessment, and provides the greatest
certainty in setting recommended biological catches (RBCs) and allows the highest
potential harvest rate.

Tier 2 provides a medium level of certainty based on an annual fishery assessment
and allows a lower potential harvest rate.

Tier 2(b) – Atlantis provides lower levels of assessment based on an annual fishery
assessment and Atlantis-SPF modelling, and applies where a DEPM survey has not
been undertaken or has expired.

Tier 3 applies when the requirements of other Tier levels are not met, and manages
the greater levels of uncertainty through much more conservative harvest rates.
Total Allowable Catches (TACs)
Recommended Biological Catches (RBCs) are calculated using the estimated spawning
biomass of each stock obtained from DEPM surveys and the harvest rates specified in the
SPF Harvest Strategy. State catches are then deducted from the species RBC to provide the
TAC considered by SEMAC. The SEMAC then provides advice to the AFMA Commission
on the setting of TACs in the fishery for the season.
The AFMA Commission makes the final decision on TACs after considering the
sustainability of the stock, state catch information and the broader ecosystem effects, as well
as the advice of the SPFRAG, SEMAC and AFMA Management.
The TACs for the target species in the fishery for the 2015-16 season leave 92.4 per cent of
the combined estimated fish stocks in the water. Regional catch limits have also been applied
to distribute fishing effort across the fishery, enable the collection of representative data
across the fishery, and minimise any potential risk of localised stock depletion. The regional
catch limits comprise a series of 120 grids and seven zones (Figure 4).
Further information on regional catch limits is described in the VMP for the mid-water trawl
vessel currently operating in the SPF, which is available from the AFMA website at:
 http://www.afma.gov.au/fisheries/small-pelagic-fishery/.
Table 2. TACs for 2011-12 to 2015-16.
TAC (t)
2011-12
TAC (t)
2012-13
TAC (t)
2013-14
TAC (t)
2014-15
TAC (t)
2015-16
Australian sardine (east)
400
200
270
560
1880
Blue mackerel (east)
2500
2600
2700
2660
2630
Blue mackerel (west)
4200
6500
6500
6500
6200
Jack mackerel (east)
4600
10 100
9800
10 230
18 670
Jack mackerel (west)
5000
5000
5000
5000
3600
Redbait (east)
8600
6900
5200
5000
3310
Redbait (west)
5000
5000
5000
5000
2880
30 300
36 300
34 470
34 950
39 170
Species
TOTAL
11
Surveys
The survey history for target stocks in the SPF is described in Table 3. Survey results are
obtained with the DEPM, and are used to calculate RBCs based on the estimated spawning
biomass of each stock and the harvest rates specified in the SPF Harvest Strategy.
Table 3. Most recent DEPM surveys for target species in the SPF.
Stock
Blue mackerel (east)
Date surveyed
2014
Blue mackerel (west)
Jack mackerel (east)
2005
2014
Jack mackerel (west)
-
Redbait (east)
Redbait (west)
2006
-
Australian sardine (east)
2014
Notes
Results of most recent survey
(2014) will be available for
consideration in the TAC-setting
process for the 2016-17 season.
Also surveyed in 2004.
No further surveys since 2005.
The results of the survey were
applied in the TAC-setting process
for the 2015-16 season. The
previous DEPM survey was in
2002.
There are no DEPM biomass
estimates for this stock.
Also surveyed in 2005.
There are no DEPM biomass
estimates for this stock.
The results of the 2014 survey were
preliminary and therefore not used
for setting the TAC for the 2015-16
season. The results of further
surveys in late 2014 will be
available for the TAC-setting
process for the 2016-17 season.
Also surveyed in 2004.
3.6. Performance of the fishery
A statement of the performance of the SPF against its objectives, performance indicators and
performance measures is made in AFMA’s Annual Report. The Annual Report is available
on AFMA’s website at:
 http://www.afma.gov.au/wp-content/uploads/2014/04/2013-14-AFMA-AnnualReport.pdf.
The effectiveness of the Management Plan as measured against its performance criteria was
reviewed by the South East Management Advisory Committee (SEMAC) in May 2014. A
summary of the advice is available in the minutes of the meeting at:
 http://www.afma.gov.au/wp-content/uploads/2014/09/Minutes_SEMAC_15.pdf.
3.7. Description of cross-jurisdictional management arrangements
The fishery operates under cross jurisdictional arrangements in the form of Offshore
Constitutional Settlement (OCS) arrangements. AFMA continues to review management
arrangements with relevant state agencies to pursue complimentary management measures,
particularly for sardine catch and bycatch.
12
4. Research and Monitoring
4.1.
Research undertaken in the SPF
AFMA’s strategic research objectives for the SPF are described in the Small Pelagic Fishery
Five Year Strategic Research Plan 2012-13 to 2016-17. Operators work with AFMA and
external research organisations to undertake scientific monitoring programs. Observers also
undertake biological sampling of target and bycatch species. This information is used to
assess the impacts of the fishery on the marine environment and the effectiveness of
management measures and commitments under the Bycatch and Discarding Workplan 201416. Table 4 provides a list of research projects undertaken or scheduled to be undertaken in
the SPF.
The SPF research plan is available from the AFMA website at:
 http://www.afma.gov.au/research/fishery-research-plans/.
13
Table 4. Summary of recent research undertaken or scheduled to be undertaken in the SPF.
Project
Purpose
Research institution
Egg identification
(FRDC Project
#2014/022)
Method development
(FRDC Project
#2014/026)
Developing a rapid molecular identification
technique to improve egg production based fish
biomass assessments – currently focused on tropical
species but could be extended to temperate species.
Looking at the robustness and precision of estimates
of egg production and spawning biomass obtained
using the daily egg production methodology (DEPM)
Method Workshop
(FRDC Project
#2013/063)
Benchmarking Australia’s small pelagic fisheries
against world's best practice
Harvest Strategy
(FRDC Project
#2013/028)
Reviewing and updating harvest strategy settings for
the SPF. Results used in the review the SPF Harvest
Strategy 2008 for the 2015-16 season, which
commenced on 1 May 2015
Preliminary DEPM
survey (FRDC Project
#2013/053)
Surveying spawning stock in the Small Pelagic
Fishery on the East Coast (sardines and jack
mackerel). Results used to inform the setting of
TACs for the 2015-16 season, which commenced on
1 May 2015
Status / Timing
James Cook University
(JCU)
Anticipated completion in August
2017
South Australian
Research and
Development Institute
(SARDI)
South Australian
Research and
Development Institute
(SARDI)
CSIRO
Anticipated completion in January
2016
South Australian
Research and
Development Institute
(SARDI)
Workshop held in Adelaide over 5
days in July 2014; report to be
completed in 2015
Completed February 2015: Review
and update of harvest strategy
settings for the Commonwealth
Small Pelagic Fishery: single
species and ecosystem
considerations (Smith et al. 2015)
Completed March 2015: Summer
spawning patterns and preliminary
Daily Egg Production Method
survey of jack mackerel and
Australian sardine off the East
Coast (Ward et al. 2015a)
14
2nd DEPM survey
(FRDC Project
#2014/033)
Egg distribution, reproductive parameters and
spawning biomass of blue mackerel, Australian
sardine and tailor off the East Coast during late
winter and early spring
Jack mackerel stock
Summary of information on the stock structure of
structure
jack mackerel in the SPF. The report suggests that
further genetic studies may be required to confirm
the existence of a separate stock
Importance of small
Report on the importance of small pelagic species in
pelagic species in diet
the diets of SBT. The report suggests that fishing for
of Southern Bluefin
small pelagic species have only minor impacts on
Tuna (SBT)
other parts of the ecosystem and that alternative food
sources exist for species like tuna
Annual SPF fishery
Annual assessments of SPF stocks are required under
assessment (RR
the SPF Harvest Strategy. The report suggests that
Project #2014/0819)
recent catch levels of all SPF quota species are
sustainable
Small Pelagics
Given the national interest in small pelagic resources
Research Co-ordination and their utilisation a subprogram has been formed to
Program
coordinate the research undertaken. This will include
(FRDC Project
sardines, jack mackerel, blue mackerel, redbait and
#2013/064)
small pelagics in the Northern Territory
Technical workshop to The workshop discussed options for minimising
explore mitigation
marine mammal interactions from mid-water trawl
options for TEPs in the operations in the SPF and identified research gaps. It
SPF (FRDC Project
was attended by fishing stakeholders, including
#2015/046)
trawler operators, government officials and marine
life experts.
South Australian
Research and
Development Institute
(SARDI)
CSIRO
Surveys undertaken on east coast
during August/September 2014;
anticipated completion in October
2015
Completed May 2015: Jack
mackerel stock structure in the SPF
(Bulman et al. 2015a)
CSIRO
Completed May 2015: Summary of
SBT diet studies in relation to SPF
species (Bulman et al. 2015b)
SARDI
Completed June 2015:
Commonwealth Small Pelagic
Fishery: Fishery Assessment
Report 2014 (Ward et al. 2015b)
Meeting of technical group
scheduled for 2015
University of Tasmania
(UTAS)
Fisheries Research and
Development
Corporation (FRDC)
Workshop held in June 2015; the
final report was completed in July
2015 and is available on the FRDC
website.
15
4.2.
Monitoring programs
The monitoring program for the SPF includes information collected through logbooks
and catch disposal records (CDRs), scientific surveys, observer coverage and
independent research. An overview of the monitoring program is provided below.
Logbooks
All concession holders in the SPF are required to complete paper and/or electronic
logbooks. Purse seine operations must complete the Purse Seine Daily Fishing Log
(PS01A) and mid-water trawl operations must complete the Eastern Finfish Trawl
Daily Fishing Log (EFT01B) or Southern and Western Finfish Trawl Daily Fishing
Log (SWT01A). Logbooks provide for the recording of information on the vessel,
operator, gear, location, time and catch for each fishing operation. Information on
bycatch species, interactions with TEP species and other trip observations including
discard rates are also collected. Accurate data from logbooks allow AFMA to monitor
bycatch and discards in the fishery and respond to any emerging issues.
Catch disposal records (CDRs)
CDRs are used by fisheries managed under the quota system to gather and maintain
data on the species caught. On landing, the fishing concession holder, SFR holder, or
a nominated authorised person is required to complete a catch disposal record form
detailing the species caught and their accurate weight. A GAB Catch Disposal Record
(GAB2C) or SESSF Catch Disposal Record (SESS2A/B) must be used for all fishing
methods in the SPF.
Observer program
Concession holders are required to carry an observer at any time when directed to do
so by AFMA. The baseline coverage for the SPF is:


10 per cent of days fished in the fishery for purse seine
20 per cent of days fished in the fishery for mid-water trawl.
If a vessel is new to the SPF the concession holders must also ensure an AFMA
observer is on board the vessel for the first five trips for purse seine vessels and the
first 10 trips for mid-water trawl vessels, and as directed by AFMA thereafter.
There were three observed trips for purse seine operations in 2014. No mid-water
trawl vessels operated in the SPF in 2014. All four trips for have been observed for
mid-water trawl up to 30 June 2015.
Electronic monitoring
All vessels are required to operate an AFMA approved Vessel Monitoring System
(VMS) at all times. It is compulsory that the mid-water trawl vessel currently
operating in the fishery has an electronic monitoring (e-monitoring) system
operational during all fishing activities.
5. Catch and effort
5.1.
Total catch of target species
The fishing season for the SPF starts on 1 May each year. Catches have been
significantly below the TACs for all species. Commercial catch data is provided in
Table 5. More information is detailed in the ABARES fishery status reports at:
 http://www.agriculture.gov.au/abares/publications.
16
Table 5. SPF TACs and reported catches for fishing seasons 2011-15*.
2011-12
2012-13
2013-14
2014-15
TAC Catch
TAC Catch TAC Catch TAC Catch
Stock
(t)
(t)
(t)
(t)
(t)
(t)
(t)
(t)*
Australian
400
23
200
15
270
17
560
161
sardine
Blue
mackerel
2500
0
2600
1
2700
0
2660
209
(east)
Blue
mackerel
4200
130
6500
0
6500
0
6500
0
(west)
Jack
mackerel
4600
0
10 100
0
9800
0
10 230 272
(east)
Jack
mackerel
5000
0
5000
0
5000
0
5000
0
(west)
Redbait (east) 8600
0
6900
0
5200
0
5000
2
Redbait
5000
0
5000
0
5000
0
5000
0
(west)
Total
30 300
153
36 300
16 34 470 17
34 950 644
*Catches rounded to the nearest 100 tonne.
Research catch allowances
In addition to TACs, research catch allowances can be set for the SPF target stocks for
research purposes (See Table 6). No research catch allowance was set for the 2013-14
and 2014-15 seasons.
Table 6. SPF Research Catch Allowances for 2015-16.
Stock
Australian sardine
Blue mackerel (east)
Blue mackerel (west)
Jack mackerel (east)
Jack mackerel (west)
Redbait (east)
Redbait (west)
Total
*Data not yet available.
2015-16
Research allowance (t)
Research catch (t)*
1
3
3
3
3
2
2
17
17
5.2.
Bycatch
Bycatch in the SPF is very low due to the targeted nature of the fishing operations.
SPF operators must cover any bycatch of other fishery quota species with quota for
that species. Bycatch information for each fishing season is available in AFMA’s
Catchwatch reports at:
 http://www.afma.gov.au/fisheries-services/catchwatch-reports/.
Refer to Section 7 regarding interactions with TEP species.
Ecological Risk Management and TEP species
In June 2007, AFMA released Ecological Risk Assessment (ERA) reports for both the
purse seine and mid-water trawl operations in the SPF. The reports describe the ERA
process for the SPF and list priority species which were scored at high risk under a
Level 2 assessment using Productivity Susceptibility Analysis (PSA).
Due to the semi-quantitative nature of the risk assessment, the Level 2 PSA results do
not directly account for all management measures. This results in an over-estimation
of risk for some species. In March 2010, AFMA released Residual Risk Assessments
reports based on the initial ERA reports to refine the results of the Level 2 assessment
(see Table 7).
The ERA reports for both purse seine and mid-water trawl operations are available at:
 http://www.afma.gov.au/sustainability-environment/ecological-riskmanagement-strategies/.
A rapid quantitative risk assessment on fishing operations in the SPF was conducted
by Zhou et al. (2009). The highest level of assessment undertaken in the SPF was a
Level 3 Sustainability Assessment for the Effects of Fishing (SAFE) for teleosts and
chondrichthyans. The report is available on the AFMA website at:
 http://www.afma.gov.au/wp-content/uploads/2014/11/SustainabilityAssessment-for-Fishing-Effect-SPF-April-2009.pdf.
The management measures to address the risks highlighted by the ERAs are described
in Ecological Risk Management (ERM) reports for the SPF. ERM reports for both
purse seine and mid-water trawl operations in the SPF were completed in March
2010. Specific actions to address these risks are described in the SPF Bycatch and
Discarding Workplan and VMPs tailored for individual boats. SPF industry has also
developed a Purse Seine Code of Practice which documents standard industry practice
for vessel operation and minimising environmental impacts.
18
Table 7. Summary of SPF species scored at high risk by ERA assessments.
Operation type Level of
Date
# species
# species identified as
assessment
assessed
being at high risk
Purse seine
ERA Level 2
2007
235
108
PSA
ERA Level 2
2010
108
29
PSA – Residual
Risk
ERA Level 3
2010
93*
0*
SAFE
Assessment
Mid-water trawl ERA Level 2
2007
237
26
PSA
ERA Level 2
2010
26
8
PSA – Residual
Risk
ERA Level 3
2010
98*
0*
SAFE
Assessment
*The ERA Level 3 SAFE assessment was for teleosts and chondrichthyans only.
Bycatch and Discarding Workplan
AFMA implemented Bycatch and Discard Workplans in 2009 and 2011 that specified
measures to at reduce the risk of interaction between SPF gear and TEP species.
The SPF Bycatch and Discard Workplan 2011-13 was reviewed by the SPFRAG in
October 2013. The review noted that all action items in the 2011-13 Workplan had
been progressed, however low levels of fishing effort prevented the full completion or
implementation of some items. The action items were incorporated into a new
workplan developed for 2014-15. The SPF Bycatch and Discarding Workplan 201416 is available at:
 http://www.afma.gov.au/wp-content/uploads/2014/11/Bycatch-and-DiscardWork-Plan-SPF-2016.pdf.
Vessel Management Plans (VMPs)
The accreditation for the SPF under Part 13 of the EPBC Act requires mid-water trawl
boats to use effective mitigation approaches and devices to minimise interactions with
dolphins, seals and seabirds. AFMA supports this requirement through VMPs
designed for all mid-water trawl boats operating in the SPF. Conditions on SPF
fishing concessions were amended to require all mid-water trawl vessels to have an
AFMA-approved VMP before commencing fishing on 1 May 2013.
VMPs are developed by AFMA in consultation with industry and set out individually
tailored mitigation measures for each boat to minimise seabird, seal and dolphin
interactions. Measures include using an AFMA-approved seal exclusion device to
reduce seal interactions and avoiding the discharge of biological waste from boats to
reduce seabird, seal and dolphin attraction. VMPs also outline the reporting
requirements of any interactions with a listed or protected species.
19
The existing VMP in the SPF outlines regional catch limits for the vessel and rules to
ensure that effort is distributed across the fishery. Regional catch limits are applied to
enable the collection of representative data across the fishery, and minimise any
potential risk of localised stock depletion.
The VMP for the mid-water trawl vessel currently operating in the SPF is available
from the AFMA website at:
 http://www.afma.gov.au/fisheries/small-pelagic-fishery/.
6. Status of target stocks
6.1.
Resource concerns
There has been no change to the stock status since the previous WTO status report and
no resource concerns related to SPF target species. The ABARES Fishery Status
Report 2013-14 lists all stocks of SPF species as ‘not overfished’, and all stocks
except for Redbait west, as ‘not subject to overfishing’. Redbait (west) is assessed as
‘uncertain’ because of limited information available to assess its status.
6.2. Results of recent stock assessments
The annual assessment for 2014 (Ward et al. 2015b) concludes that there is no
scientific evidence to suggest that any SPF species are being unsustainably harvested.
Refer to Table 3 for survey information.
7. Interactions with protected species
Protected species interaction reports are produced quarterly and are available from the
AFMA website at:

http://www.afma.gov.au/sustainability-environment/protected-speciesmanagement/protected-species-interaction-reports/.
There were no reported interactions with TEP species in the SPF for 2014, or for the
first quarter (1 January – 31 March) in 2015.
For the second quarter 2015 (1 April – 30 June) there were:




nine reported interactions with common dolphins (Delphinis delphis)
12 reported interactions with Australian fur seals (Arctocephalus pusillus
doriferus)
two reported interactions with shy albatross (Thalassarche cauta)
one interaction with a mako shark (Isurus oxyrinchus).
Management action taken to reduce impacts
Interactions with protected species in the SPF in 2015 led to increased restrictions on
fishing operations via the VMP. Subsequent dolphin interactions led to the Small
Pelagic Fishery (Closures) Direction No. 1 2015 which introduced bans on night time
fishing and triggered closures for any dolphin mortalities.
Under the Direction, zone 6 off southern New South Wales and Victoria was closed to
mid-water trawling methods for a period of six months from 17 June 2015. This is a
result of a common dolphin mortality recorded in zone 6 on 17 June 2015. The
closure will be in force until midnight on 16 December 2015.
20
AFMA has also sought advice from other sources on addressing protected species
interactions. The outcomes of a SPF Technical Marine Mammal Mitigation Workshop
convened by the Fisheries Research and Development Corporation on 25-26 June
2015 will be considered for future management actions. The report of the technical
workshop is available on the FRDC website.
8. Impacts of the fishery on the ecosystem
AFMA has updated the way it manages the SPF in order to further minimise the risk
of ecosystem impacts. AFMA has applied regional catch limits to distribute fishing
effort across the fishery, enable the collection of representative data across the fishery,
and minimise any potential risk of localised stock depletion (Figure 4). Recent
research on predator diets (Bulman et al. 2015b) also indicates that fishing for small
pelagic species in Australian waters has only minor impacts on other parts of the
ecosystem, as alternative food sources exist for large predator species like tuna.
Fishing in the SPF is relatively selective and therefore has minimal bycatch.
Information on catch and TEP interactions are available on the AFMA website at:


http://www.afma.gov.au/fisheries-services/catchwatch-reports/
http://www.afma.gov.au/sustainability-environment/protected-speciesmanagement/protected-species-interaction-reports/.
21
Figure 4. Indicative map of the SPF regional catch limit grids and management zones.
22
9. Progress in implementing fishery assessment conditions
and recommendations
Table 8. Conditions on the Part 13 SPF management plan accreditation from 28
November 2012 to 18 November 2014; extended to 24 April 2015; extended to 29
October 2015.
Conditions
Level of Achievement
Deadline
Condition 1.
Achieved – Ongoing
Ongoing
Prior to fishing, mid-water The mid-water trawl vessel, FV Geelong Star,
trawl vessels must have in commenced fishing operations in the SPF on 2
place effective mitigation
April 2015. An AFMA-approved Vessel
approaches and devices, to Management Plan (VMP) was finalised prior to
satisfy AFMA, to
the start of fishing activities and continues to be
minimise interactions with updated to minimise interactions with protected
dolphins, seals and
species.
seabirds.
All mid-water trawl vessels are now required to
have AFMA-approved VMPs to minimise
interactions with dolphins, seals and seabirds.
AFMA has also introduced night time fishing
bans and six month triggered closures for midwater trawlers for any dolphin mortality.
Condition 2.
AFMA requires that at
least one observer be
deployed on each new
mid-water trawl vessel for
the first 10 fishing trips
with additional observer
coverage or other
monitoring implemented
as appropriate, following
scientific assessment of
the SPF.
Achieved – Ongoing
The baseline observer coverage in the SPF is:
 10 per cent of days fished in the fishery
for purse seine
 20 per cent of days fished in the fishery
for midwater trawl.
New boats that enter the fishery are required to
have observers for the first five trips for purse
seine boats and the 10 trips for midwater trawl
boats.
Ongoing
The Geelong Star is required to carry an AFMA
observer for the first 12 months and then on at
least 20 per cent of trips. The Geelong Star is
also required to have an electronic monitoring
(camera) system installed. A bycatch officer was
also deployed on the vessel for the first 4 trips.
These levels may be increased based on the need
for data.
23
Table 9. Recommendations resulting from the Part 13A SPF LENS exemption from
6 January 2010 to 2 November 2014; extended to 29 October 2015.
Recommendations
Level of Achievement
Deadline
Recommendation 1.
Achieved
Ongoing
Operation of the SPF
SFRs under the SPF Management Plan came into
will be carried out in
effect on 1 May 2012. All SPF operators are required
accordance with the
to cover any catches of jack mackerel, blue mackerel,
management regime
redbait and Australian sardine with quota.
made under the
Fisheries Management
Act 1991 (FMA).
Recommendation 2.
AFMA to inform the
Department of the
Environment of any
intended amendments
to the management
arrangements that may
affect the criteria on
which EPBC Act
decisions are based.
Achieved – Ongoing
Annual Status Reports to the Department of the
Environment have outlined intended amendments and
any implemented changes to the management
arrangements of the SPF.
Recommendation 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 – Ongoing
AFMA has provided the Department of the
Environment with annual status reports since 2009.
Ongoing
In addition, the Department of the Environment has
been informed of significant intended management
changes as they have occurred.
Annually
24
Recommendations
Recommendation 4.
By December 2010,
AFMA to:
a) develop and
implement
appropriate
management
responses to
address and
mitigate risks
identified in the
ERA
b) ensure that the
ERA and
management
responses are
made publically
available once
implemented.
Level of Achievement
Achieved
ERM reports for the purse seine and mid-water trawl
sectors of the SPF were completed in March 2010.
Recommendation 5.
By June 2010, AFMA
to:
a) finalise and
implement the
bycatch and
discard workplan
for the SPF with
particular focus on
seal interactions
b) conduct annual
reviews, looking at
the long term
strategic approach
in reducing
bycatch and
discards
Recommendation 6.
AFMA to continue to
cooperate with
relevant jurisdictions
to pursue
complementary
management and
research of shared
small pelagic stocks.
Achieved
The Small Pelagic Fishery Bycatch and Discarding
Workplan (the workplan) was first agreed in
September 2009.
Deadline
December
2010
Section 5.2 of this submission outlines management
responses to address and mitigate risks identified in
the ERA through the SPF Bycatch and Discarding
Workplan.
The ERAs (for both purse seine and midwater trawl)
and ERM reports are available on the AFMA website:
 http://www.afma.gov.au/sustainabilityenvironment/ecological-risk-managementstrategies/.
June 2010
and
annually
An annual review of the 2009 workplan was
completed in 2010 and it was renewed in 2011.
The 2011 workplan was subsequently reviewed in
2012 and a final report of the 2011 workplan was
completed in October 2013.
The 2014-16 workplan is available on the AFMA
website.
Ongoing
Ongoing
AFMA has held discussions with stakeholders and
States regarding complementary management and
research. AFMA continues to focus on complementary
arrangements on bycatch management with New
South Wales, South Australia, Tasmania and Victoria.
State representatives attended SPFRAG and SEMAC
meetings.
25
Recommendations
Recommendation 7.
AFMA to consider the
development of
appropriate
performance measures
capable of responding
to future ecosystem
changes in the fishery.
Level of Achievement
Deadline
Achieved
Ongoing
Performance measures relevant to future ecosystem
changes in the fishery are contained in section 12 of
the SPF Management Plan. These include:
 data collection, research and consultation
 reviewing ERAs to determine the risk to the
maintenance of an ecologically sustainable
fishery
 setting catch limits for quota species in
accordance with the SPF Harvest Strategy
 setting catch limits (or other measures) to ensure
the ecological sustainability of non-quota
species.
The effectiveness of the Management Plan was
reviewed against its performance criteria by the South
East Management Advisory Committee (SEMAC) in
May 2014. A summary of the advice is available in the
minutes of the meeting at:
 http://www.afma.gov.au/wpcontent/uploads/2014/09/Minutes_SEMAC_15.
pdf.
SPFRAG monitored the fishery and any ecosystem
impacts through the provision of annual data
collection and the provision of fishery status reports.
The best available information is used when setting
conservative TACs for the fishery.
AFMA is monitoring the distribution of catch taken by
the Geelong Star in relation to regional catch limits to
ensure that effort and data collection is spread widely
throughout the fishery.
26
10. References
AFMAa. 2010. Ecological Risk Management: Report for the mid-water sector of the
Small Pelagic Fishery. March 2010.
AFMAb. 2010. Ecological Risk Management: Report for the purse-seine sector of the
Small Pelagic Fishery. March 2010.
AFMAc.2010. Residual Risk Assessment of the Level 2 Ecological Risk Assessment
Species Results: Report for the Small Pelagic Fishery – Mid-water Trawl. March
2010.
AFMAd.2010. Residual Risk Assessment of the Level 2 Ecological Risk Assessment
Species Results: Report for the Small Pelagic Fishery – Purse Seine. March 2010.
AFMAe. 2013. Small Pelagic Fishery: Bycatch and Discard Workplan 2011-13 Final
Report. 7p.
AFMAf. 2014. Small Pelagic Fishery: Bycatch and Discarding Work Plan 2014-16.
12p.
AFMAg. 2015. Small Pelagic Fishery Harvest Strategy 2008 (revised 2015). April
2015.
Bulman C, Fulton E, and Smith A. 2015a. Jack mackerel stock structure in the SPF.
CSIRO.
Bulman C, Fulton E, and Smith A. 2015b. Summary of SBT diet studies in relation to
SPF species. CSIRO.
Moore A, and Stephan M. 2014. Chapter 7: Small Pelagic Fishery. ABARES Fishery
Status Reports 2013-14. October 2014. 91-110p.
Small Pelagic Fishery Management Plan 2009. 2014. Federal Register of Legislative
Instruments F2014C01077. Prepared 11 September 2014; applying from 1 May 2014.
Smith A, Ward T, Hurtado F, Klaer N, Fulton E, and Punt A. 2015. Review and
update of harvest strategy settings for the Commonwealth Small Pelagic Fishery –
Single species and ecosystem considerations. CSIRO; FRDC 2013/028.
Ward T, Burnell O, Ivey A, Carroll J, Keane J, Lyle J, and Sexton S. 2015a. Summer
spawning patterns and preliminary Daily Egg Production Method survey of Jack
Mackerel and Australian Sardine off the East Coast. CSIRO; FRDC 2013/053.
Ward T, Ivey A, and Earl J. 2015b. Commonwealth Small Pelagic Fishery: Fishery
Assessment Report 2014. Report to the Australian Fisheries Management Authority.
SARDI. June 2015.
Zhou S, Fuller M, and Smith T. 2009. Rapid quantitative risk assessment for fish
species in seven Commonwealth fisheries. CSIRO.
27