Torres Strait Tropical Rock Lobster Fishery
2013 Annual Report
This report has been prepared by AFMA for
consideration by the Department of the
Environment in relation to the exemption of
the Torres Strait Tropical Rock Lobster
Fishery from export controls under the
Environment Protection and Biodiversity
Conservation Act 1999.
TABLE OF CONTENTS
1
Description of the Fishery _________________________________________________ 5
1.1
Target and Bycatch Species _________________________________________________ 6
1.1.1 Target Species __________________________________________________________ 6
1.1.2 Prohibited Species_______________________________________________________ 6
2
1.2
Management Arrangements Employed in the Fishery ___________________________ 6
1.3
Fishing Methods (gear types) ________________________________________________ 7
1.4
Fishing Area _____________________________________________________________ 7
1.5
Allocation between sectors __________________________________________________ 9
1.6
Governing legislation/fishing authority________________________________________ 9
1.7
Status of export approval/accreditation ______________________________________ 11
Management __________________________________________________________ 11
2.1
Changes to management arrangements ______________________________________ 11
2.2
Performance of the fishery _________________________________________________ 12
2.3
Compliance risks present in the fishery ______________________________________ 12
2.3.1 Customized Registration Sticker System ___________________________________ 14
2.3.2 Penalty Infringement Notices ____________________________________________ 14
2.3.3 Demerit Points System __________________________________________________ 14
2.4
Consultation Processes ____________________________________________________ 14
2.5
Cross-jurisdictional management arrangements _______________________________ 16
2.6
Outcomes of review processes ______________________________________________ 16
2.7
Demonstration of compliance with TAPs, recovery plans, etc ____________________ 16
3
Research and monitoring ________________________________________________ 17
4
Catch data ____________________________________________________________ 17
5
6
7
4.1
Total catch of target species ________________________________________________ 17
4.2
Total catch of target species taken in other fisheries ____________________________ 19
4.3
Catch of byproduct/ bycatch species _________________________________________ 19
4.4
Harvest by each sector ____________________________________________________ 19
4.5
Effort data including information on any trends _______________________________ 20
4.6
Spatial issues/trends ______________________________________________________ 21
Status of target stock ____________________________________________________ 22
5.1
Resource Concerns _______________________________________________________ 22
5.2
Stock Assessments ________________________________________________________ 23
5.3
Results of any stock recovery strategies ______________________________________ 23
Interactions with protected species _________________________________________ 24
6.1
Frequency and nature of interactions ________________________________________ 24
6.2
Management to reduce impacts and results of such action _______________________ 24
Impacts of the fishery on the ecosystem in which it operates ____________________ 24
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
8
7.1
Results of any Ecological Risk Assessments ___________________________________ 24
7.2
Nature of impacts on the ecosystem _________________________________________ 24
7.3
Management to reduce impacts and results of such action _______________________ 24
Description of progress in implementing each recommendation and condition _____________ 25
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Introduction
Fisheries management in the Torres Strait Protected Zone (TSPZ) is undertaken under the
Torres Strait Fisheries Act 1984 (the Act) and is administered by the Protected Zone Joint
Authority (PZJA). AFMA undertakes the day to day management of TSPZ fisheries under
Delegation of the PZJA. Management must also align with the objectives of the Torres Strait
Treaty 1985 (The Treaty), ensuring that catch sharing arrangements between Australia and
Papua New Guinea (PNG) are considered.
The Torres Strait Tropical Rock Lobster Fishery (TRLF) was granted export
approval/accreditation under the Environment Protection and Biodiversity Conservation Act
1999 (EPBC Act) on 23 November 2010 for a period of 3 years and is valid until 23 November
2013. This accreditation was subject to a number of conditions and recommendations. The
progress towards outcomes of which are discussed in Attachment A. AFMA is seeking a
further 3 year export accreditation. A formal management plan for the TRLF is being
developed by the PZJA on a timeline for implementation by 2015 however it may take longer.
The management plan will transition the TRLF from input management against nominal total
allowable catches to an allocated quota management system.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
1 Description of the Fishery
At a glance
Principal
species
The Ornate or Tropical Rock Lobster (TRL) (Panulirus ornatus)
Area of
operation
From the tip of Cape York to the northern border of the Protected Zone – most of the
catch comes from the western and south-eastern part of the fishery where the densities
of TRL are highest.
Fishing
techniques
Taken by divers working from four to six metre tenders, using a short hand spear or
snare either with the use of surface supplied air (hookah) or free diving. Only one diver
works from each tender. Divers work to about 20 metres in depth and dive mainly
during daylight hours. Some Traditional Inhabitants fish at night with a light.
Number of
vessels
12 licensed primary vessels (2013) with a total of 32 attached dinghies (tenders or
service vessels); Two non-transferable dinghy licences;
As of the 29th day of October 2013 there were 214 active TIB licenses with TRL
endorsements. There is no limit on the issue of TIB licences.
Fishing
season
Commercial fishing occurs from December to September, with a fishery closure during
October and November. The use of hookah equipment is banned during December and
January.
Estimated
catch and
value 20072009
2012: Australia: 558 t live weight; Papua New Guinea: 173 t live weight
2011: Australia: 667 t live weight; Papua New Guinea: 200 t live weight
2010: Australia: 470 t live weight; Papua New Guinea: 293 t live weight
2009: Australia: 228 t live weight; Papua New Guinea: 114 t live weight
Value in the 2012 season was $A18.4 million.
Main
markets
Frozen TRL tails are sold on the domestic and overseas markets (mainly the United
States). The value-added live trade of TRL began in the mid-1990s and supplies export
markets (mostly China) and a small domestic market. Handling and shipping live TRL
require more sophisticated transport infrastructure than frozen tails and there is a risk of
losing product between the point of harvest and its market.
Stock status
The Fishery Status Reports 2012 produced by the Australian Bureau of Agricultural
Resource Economics and Sciences - Bureau of Rural Sciences (ABARES) considers
the fishery “not overfished/not subject to overfishing.”
Current
management
method
Input controls include a limited number of dinghies (tenders) for both TVH and TIB
freezer boat operations, and a boat replacement policy for upgrading vessels. Technical
controls include a legal size limit on TRL, a ban on use of hookah-gear from December
to January and a closure of commercial fishing in October and November.
Resource
competition
Australia and Papua New Guinea share the commercial fisheries of the Torres Strait
Protected Zone under formal arrangements detailed in the Torres Strait Treaty.
Long term
potential
yield
The model estimate of MSY in 2013 was 740 t (Australia only). The nominal TSPZ Total
Allowable Catch for 2013 was 871 t.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
1.1 Target and Bycatch Species
1.1.1 Target Species
The fishery is based on a single species, the ornate or Tropical Rock Lobster (TRL), Panulirus
ornatus, which is taken by divers using hand held implements.
1.1.2 Prohibited Species
As the fishery is a highly selective single species fishery, no bycatch is taken. However,
fishers with other endorsements are able to harvest under those authorities while targeting
TRL.
1.2 Management Arrangements Employed in the Fishery
The TRLF is managed under the Act through fisheries management instruments as well as a
range of fishery management policies agreed from time to time by the PZJA. In exercising its
management functions, the PZJA pursues the objectives of the Act. These objectives are:
1. to acknowledge and protect the traditional way of life and livelihood of traditional
inhabitants, including their rights in relation to traditional fishing;
2. to protect and preserve the marine environment and indigenous fauna and flora in and
in the vicinity of the Protected Zone;
3. to adopt conservation measures necessary for the conservation of a species in such a
way as to minimise any restrictive effects of the measures on traditional fishing;
4. to administer the provisions of Part 5 of the Torres Strait Treaty (relating to commercial
fisheries) so as not to prejudice the achievement of the purposes of Part 4 of the
Torres Strait Treaty in regard to traditional fishing;
5. to manage commercial fisheries for optimum utilisation;
6. to share the allowable catch of relevant Protected Zone commercial fisheries with
Papua New Guinea in accordance with the Torres Strait Treaty; and
7. to have regard, in developing and implementing licensing policy, to the desirability of
promoting economic development in the Torres Strait area and employment
opportunities for traditional inhabitants.
The TRLF consists of two major sectors – TIB (traditional) and TVH (non-traditional)
commercial sectors. Any expansion in participation in the TRLF is limited to the TIB sector in
order to pursue the objective of promoting employment opportunities for traditional
inhabitants.
The PZJA has imposed licensing provisions to limit expansion in the TVH sector, both in
terms of fishing capacity (boat replacement policy) and licence numbers. There is a ban on
prawn trawlers taking TRL to reduce pressure on the stock.
The following policy is in place which limits the length of primary boats (i.e. those boats from
which tenders operate):

boats up to six metres may be replaced by a boat up to six metres;

boats greater than six metres and less than or equal to ten metres may be replaced by
a boat up to ten metres;

boats greater than ten metres and less than or equal to 14 metres may be replaced by
a boat up to 14 metres; and

boats greater than 14 metres may be replaced by a boat of equal length.

The maximum size for fishing boats in the TRLF is 20 metres.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Many of the primary boats have been in the fishery for many years. Unlike many fisheries
where the size, horsepower and other characteristics of the primary boats may play a
significant role in the fishing powers of the operation, this is not so much the case in the TRLF
because the fishing is done entirely from tenders. Divers operating from the tenders are not
required to hold a Torres Strait Master Fisherman’s Licence, but the boat from which the
tender is working must be operated by someone who holds this licence.
Many, but not all boats licensed for the TRLF have endorsements for other fisheries. In
practice, the other endorsements are used to a very limited extent. Additionally, it is not
feasible for the primary boat to undertake other fishing activities while its tenders are used for
TRL fishing and while divers are in the water.
Regulations currently employed in the TRLF include:

limiting the method of taking of TRL to either hand, or with the use of a hand held
implement, such as a spear or scoop net, with an October-November (inclusive)
closure on commercial fishing;

a further ban on the use of hookah gear during December and January (inclusive);

a minimum tail size of 115mm or minimum carapace length of 90mm for all
commercially caught TRL;

a bag limit of 3 TRL per person or 6 TRL per dinghy applies to traditional fishing
(Islander or visiting PNG Traditional Inhabitants). The same limit applies to
recreational fishing under Queensland State law; and

the prohibition of the processing or carrying of TRL meat that has been removed from
any part of a TRL on any boat.
1.3 Fishing Methods (gear types)
TRL is most commonly taken by divers working from four to six metre tenders, using a short
hand spear or snare either with the use of surface supplied air (hookah) or free diving. Only
one diver works from each tender. Divers generally work to about 20 metres in depth and dive
mainly during daylight hours. Some TIB operators fish at night with a light, searching for TRL
walking the reef tops. Most fishing occurs during neap tides when currents are weaker and
the water is less turbid.
The TVH sector relies on larger primary boats and predominantly use hookah diving to collect
TRL. In contrast, the TIB sector use smaller boats and free diving is the more commonly used
method, however there is increasing interest to move to hookah diving.
1.4 Fishing Area
Most commercial fishing for the TRL occurs in the Torres Strait and less activity along the far
north-east coast of Queensland. TRL probably comprises a single stock north of around 14o
South along the Queensland coast, in the Torres Strait and the south eastern coast of PNG.
Breeding within this region could potentially supply recruits to all areas within the region due
to the clockwise gyre in the north-west Coral Sea (see Figure 1 below). Assessments are
based on surveys of juvenile (1+ year old) and sub-adult (2+ years old) TRL in the central and
western Torres Strait where most of the fishing occurs (Figure 1 – cross hatched area within
the Torres Strait).
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Figure 1: Map of the Torres Strait and Gulf of Papua showing the main fishing grounds
around the central and western reefs and islands (- - -), the migration pathways (==>),
breeding grounds (= ), current patterns (
>) in the Coral Sea, and the boundary of the
Protected Zone (----).
Figure 2: Area of the Torres Strait Tropical Rock Lobster Fishery, including areas of PNG
jurisdiction but excluding PNG areas outside but near the Torres Strait Protected Zone.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
1.5 Allocation between sectors
The TSPZ catch is split between three sectors in Australian waters – TVH, TIB and those
PNG vessels endorsed to fish in Australian waters under Treaty arrangements. Each year the
CSIRO undertake a stock assessment that informs a nominal Total Allowable Catch (TAC) for
the TSPZ (see section 5.2). Based on this stock survey it is determined that 85% of the TSPZ
TRL stock is in Australian waters and 15% is in PNG waters. It should be noted that as the
fishery is not currently under a statutory quota management system these are nominal splits
of the recommended total catch. Each sector is monitored against the TAC.
The Treaty specifies catch sharing arrangements between Australia and Papua New Guinea
(PNG). Under the Treaty, PNG are entitled to 25% of the Australian TAC in Australian waters,
and Australia is entitled to 25% of the PNG TAC in PNG waters. In 2013, PNG were allocated
185 tonnes in Australian waters, and Australia was allocated 26 tonnes in PNG waters. The
PNG catch allocation is converted to tender fishing days under the catch sharing model.
The 2013 catch sharing arrangement allowed for three PNG licensed fishing boats, each with
up to seven tenders to access the TSPZ to take TRL. The effort allocation model limited effort
to 685 tender days in 2013 however only a small fraction of this was utilised. Australia has to
date forgone access to its share of the catch in the PNG area of jurisdiction. This was taken
into account when calculating the effort allocation to PNG. Officials from Australia and PNG
meet annually to discuss fisheries matters in accordance with the Treaty, and PNG TRL
allocation is one of these matters.
From the remaining 75% of the Australian TAC in Australian waters, this is split between the
TVH and TIB sectors. The PZJA made a decision at its 18th meeting in July 2005 to work
towards adjusting access to the TRLF between the TIB and TVH commercial fishing sectors.
The PZJA decided it would offer payments for TVH licences through a voluntary tender
process to acquire access needed to meet Australia’s obligations under the catch sharing
provisions of the Treaty.
In 2007, the Commonwealth Department of Agriculture, Fisheries and Forestry (DAFF)
conducted two open tender processes on behalf of the PZJA to increase the relative share of
the fishery for the traditional inhabitant (TIB) sector. The first tender process resulted in the
acquisition of two non-traditional licences, and the second resulted in a further acquisition of
11 licences. In 2012, the Queensland Department of Agriculture, Fisheries and Forestry
(QDAFF) undertook a further open tender process, removing one additional licence. Overall,
14 primary boats and 31 associated tenders (dinghies) from the non-traditional (TVH) sector
have been surrendered through these structural adjustment processes. There are now 12
primary boats with 32 tenders remaining in the TVH sector. The TIB sector currently holds
approximately 56% of the Australian allocation.
From the total TSPZ TAC each year, the current sectoral allocations are:

TIB sector 38%

TVH sector 29%

PNG sector 33%
1.6 Governing legislation/fishing authority
The jurisdiction and management framework for commercial and traditional fisheries in the
Torres Strait is governed by the provisions of the Treaty, enacted between Australia and
PNG. The Treaty describes an area in the Torres Strait known as the TSPZ. The TSPZ
consists of areas in which Australia and PNG have jurisdiction over certain swimming marine
species and sedentary marine species.
The principal purpose of the parties in establishing the TSPZ is to acknowledge and protect
the traditional way of life and livelihood of the Traditional Inhabitants including their rights in
relation to traditional fishing and free movement. A further purpose of the Parties in
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
establishing the TSPZ is to protect and preserve the marine environment and indigenous
fauna and flora in the vicinity of the TSPZ.
In order to implement Australia’s fisheries-related treaty obligations in relation to traditional
fishing, the principal commercial fisheries were placed under the jurisdiction of the Torres
Strait Fisheries Act 1984. The Act provides for the Torres Strait fisheries to be managed
under the laws of the Commonwealth or Queensland. In 1999, the PZJA agreed that all
commercial fishing activity in the Torres Strait would be managed under the laws of the
Commonwealth (see section 31 (2) of the Act).
The Act established the Protected Zone Joint Authority (PZJA) which has responsibility for
administering Act. The PZJA members comprise of the Commonwealth and Queensland
Ministers responsible for fisheries and the Chairperson of the TSRA. The Commonwealth
Government Minister is the Chairperson of the PZJA.
The Act sets out the functions of the PZJA. These functions consist of:

keeping constantly under consideration the condition of the fishery; and

formulating policies and plans for the good management of the fishery.
And for the purposes of the management of the fishery:

exercising the powers conferred on it; and

co-operating and consulting with other authorities (including Joint Authorities
established under the Fisheries Act 1952 or the Fisheries Management Act 1991) in
matters of common concern.
The Torres Strait Protected Zone Joint Authority (PZJA)
The PZJA is responsible for monitoring the condition of the designated fisheries and for the
formulation of policies and plans for their management. In exercising its functions, the PZJA
has regard to the rights and obligations conferred on Australia by the Torres Strait Treaty, in
particular the protection of the traditional way of life and livelihood of the Traditional
Inhabitants, including the capacity to engage in traditional fishing.
The PZJA has delegated day to day management of the fisheries to Australian Fisheries
Management Authority (AFMA), and compliance and licensing in the fisheries to the
Department of Agriculture, Fisheries and Forestry (QDAFF).
Four agencies actively support the PZJA in the administration of its functions being AFMA,
QDAFF, TSRA and Australian Government Department of Agriculture (DAFF).
The Australian Fisheries Management Authority (AFMA)
The primary services provided by AFMA to the PZJA are:

day to day management responsibility;

contribute fisheries management expertise;

facilitate the provision of scientific data on the condition of the fisheries in support of the
PZJA’s obligation to keep “constantly under consideration the condition of the fishery”;

develop and implement regulations to implement the PZJA’s policies;

coordinate the PZJA consultative process and provide secretariat service;

foreign compliance activities; and

coordinate Australia’s participation in the annual Fisheries Bilateral meetings.
The Queensland Department of Agriculture, Fisheries and Forestry (QDAFF)
The primary services provided to the PZJA are:

provide advice to the Queensland PZJA member on PZJA fisheries issues and on his /
her statutory obligations;
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013

administer all PZJA licensing functions (including the establishment of a ‘register’ to
record effort or catch entitlements held by individual fishers under a management plan;

contribute fisheries management expertise (noting that many fishers in the TSPZ are
cross endorsed to fish for similar species in Queensland fisheries); and

domestic compliance activities.
The Torres Strait Regional Authority (TSRA)
The TSRA is a Commonwealth statutory authority forming part of the Government’s
Indigenous Affairs Portfolio, was established in 1994 in order to strengthen the economic,
social and cultural development of the Torres Strait to improve the lifestyle and well-being of
indigenous people (Islanders and Aboriginal) living in the Torres Strait.
The primary services provided by the TSRA to the PZJA are:

provide advice to the TSRA Chair on PZJA fisheries issues and on his/her statutory
obligations;

contribute expertise in relation to traditional fishing in the TSPZ (in particular in relation
to the Turtle and Dugong fishery); and

support and facilitate Torres Strait Islander and Aboriginal involvement in the PZJA
consultative processes.
The Australian Government Department of Agriculture
DAFF provides the following services to the PZJA:

provide advice to the Australian Government Minister (and Chair) on PZJA fisheries
issues and on his/her statutory obligations;

manage the bilateral relationship with PNG;

over-arching responsibility for legislation and Australian Government policy.
1.7 Status of export approval/accreditation
The TRLF was granted export approval/accreditation under the EPBC Act on 23 November
2010 for a period of 3 years. This accreditation was subject to a number of conditions and
recommendations (see in Attachment A). AFMA is seeking a further 3 year export
accreditation.
2 Management
2.1 Changes to management arrangements
There have been no significant changes to management arrangements since the last
reporting period. The only changes relate to the interim management arrangements, being
the removal of:
 week-long spring-tide hookah closure each month; and the

30% reduction in tender use for TVH operators with more than one tender.
The PZJA agreed that following the completion of the 2012 structural adjustment that all
interim management arrangements in the fishery would be removed. Further to this, based
on data gathered since their inclusion in 2003 to present, these arrangements were judged to
be ineffective in limiting TVH effort in the fishery.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
2.2 Performance of the fishery
The performance of the TRL fishery against its reference points has been relatively good. The
most recent stock assessment indicates that the stock has been fished to below the spawning
stock levels associated with maximum sustainable yield (MSY) in 4 years out of 22. However,
the stock recovered following these years.
Catches in the fishery have varied considerably over time. As the fishery is based largely on a
single year class of age 2+ TRL, variations in recruitment strongly influence catches in the
fishery. A decrease in fishing effort from the structural adjustment programs has also brought
about a decrease in catch since 2007.
The 2012 fishing season was considered a good fishing year for the fishery. Although the
season was not as productive as 2011, catches were consistent with 2010 which was also
considered a good year. Catch Per Unit of Effort (CPUE) for both the TVH and TIB sectors
were below 2011 levels, however again consistent with 2010. Up until 2005 the TVH sector
took more TRL than the TIB sector; however this trend is now changing. The structural
adjustment processes have removed half of the TVH licences.
The 2013 mid-season independent TRL survey conducted by CSIRO experienced the worst
underwater visibility since annual surveys commenced in 1989. While thought to influence
survey results the survey found that recruiting 1+ TRL were just below the long-term average,
which would suggest that the 2014 season may not be as productive as 2012. The numbers
of adult (aged 2+) TRL was consistent with the long-term average supporting the catch
reported to date in 2013.
Assessment of the TRLF has come a long way. There have been some improvements in
catch data but also some loss of population size-structure data. Most importantly, the number
of years of data on the fishery continues to increase, providing more information about the
stock and the way it responds to fishing pressure and varies naturally from year to year. New
stock assessment models can capture this information and allow the estimation of population
parameters to determine the performance of the fishery.
The TRL Resource Assessment Group (TRLRAG) accepted the final 2013 Stock Assessment
report. The TRL RAG also accepted the following changes to the stock assessment model in
2011:

Revised assumption of a hyperstable CPUE relationship;

Increase to the stock recruit variance parameter;

Estimating a new selectivity for the 1973-1988 period; and

New reference spawning biomass level.
The stock assessment presented at the 2013 TRLRAG indicated that spawning stock
biomass was well above the minimum agreed threshold level and near the biomass target
level of 65% of virgin biomass.
2.3 Compliance risks present in the fishery
At the most recent Torres Strait Fisheries Management Advisory Committee (TSFMAC)
meeting in March 2012 the group was informed that the incidence of incursions by Indonesian
fishing vessels continues to remain low with only two apprehensions during 2010/11 and no
sightings to date in 2012/ 2013. Queensland Boating and Fisheries Patrol (QB&FP) gave a
domestic compliance update at the meeting and informed the group that there had been no
significant catch related offences for the TRLF throughout 2011.
Two separate programs administer the compliance regime in the Torres Strait. Coastwatch
manages and coordinates the civil maritime surveillance program that identifies incursions
into Australia’s Exclusive Economic Zone (EEZ). Civil aircraft under contract to Coastwatch
conduct surveillance of the Torres Strait region. Following a report from Coastwatch of a
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
12
foreign fishing vessel sighting, AFMA initiates a response. Coastwatch coordinates the
response, using the at-sea platforms including the Royal Australian Navy patrol craft and
larger vessels of the National Marine Unit (NMU) of the Australian Customs Service.
QB&FP carries out the domestic compliance programs for the Torres Strait under an
agreement between the Commonwealth of Australia and the State of Queensland relating to
the cost of management of fisheries in the area of Australian jurisdiction.
AFMA undertook a compliance risk assessment for the Torres Strait in 2004 in response to
the PZJA’s concerns that the compliance programs for the fisheries under its authority were
being compromised for a number of reasons. The executive summary of the risk assessment
and compliance plan was tabled at the TSFMAC meeting in July 2004 with the full risk
assessment endorsed at PZJA 17.
Using this process, the following risks were identified as being significant for the TRLF, based
on controls that were in place at the time:

The risk of unlicensed domestic operators (non-traditional) and unlicensed PNG nationals
was identified as high.

Unlicensed domestic operators (traditional) were considered moderate risk.

Breach of gear restrictions, in particular the use of hookah breathing apparatus and
seasonal closures, were identified as moderate risks.

Breach of possession limits, size limits and fishing during seasonal closures were rated as
moderate risks.
The risk assessment acknowledged the understanding that QB&FP was responsible for the
enforcement of statutory prohibitions including patrolling and surveillance, and the preparation
of evidence for use in legal proceedings.
The risk assessment process pointed to some shortcomings that existed within compliance
arrangements in the Torres Strait fisheries. While compliance in the Protected Zone was
managed by QB&FP:

QB&FP staff were increasingly diverted from Torres Strait compliance functions to
activities of national importance, i.e. post-apprehension administration of Indonesian
vessels and crew;

relief officers did not have time to gain a full understanding of the issues involved in (a)
dealing with Indonesian fishing crews, or (b) Torres Strait fisheries management issues;

the ability of QB&FP staff to carry out compliance activities on the more distant island and
reef groups and along the border with PNG was compromised. Officers relied on the
availability of Customs and Police vessels and fisheries patrols were a low priority for the
agencies who own these boats. Even when Custom vessels were employed, they were
limited in their usefulness in that vessels could not proceed into uncharted waters.
The risk assessment suggested some options that PZJA could consider for enhancing the
compliance program, including:

a letter from the PZJA to the Commonwealth Minister identifying the severity of the
foreign fishing vessel issue and its impact on the ability of the PZJA to manage Torres
Strait fisheries:

minimum training standards (Certificate IV in Government Fraud Control Investigations) for all fisheries officers;

AFMA and Fisheries Queensland to continue to cooperatively identify arrangements
that;
(1)
minimise the effect of the foreign fishing program on the PZJA compliance
program; and
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
(2)
create less reliance on external agencies for vessels capable of patrolling the
whole of the fishery.
At its 17th meeting, the PZJA requested a report on options for enhancing the compliance
program in the Torres Strait.
2.3.1 Customized Registration Sticker System
At its 20th meeting on 26 October 2006, the PZJA agreed to implement the specific guidelines
for the proposed customized Torres Strait Fishing Boat Registration Sticker System. The
system requires licence holders to display registration stickers on TIB and TVH licensed boats
to provide enforcement officers and others with a means of visually identifying whether the
boat is authorised to be used under the licence. Under the system the Queensland Water
Police are able to easily determine whether boats are registered. While issues among the
parties have prevented the system from being formally regulated, fishers are using the
stickers and demonstrating the value of the scheme. Once agreement is reached a
Regulation will be developed. The sticker system will apply to all boats licensed to fish in the
TSPZ with the exception of prawn endorsed boats. Prawn endorsed vessels are not
considered to have a high risk from unlicensed fishing and are monitored via VMS. Cross
endorsed PNG vessels will also be required to display a sticker under the system.
2.3.2 Penalty Infringement Notices
The provision of power for the Commonwealth Minister to implement alternatives to
prosecution for offences under the Act by way of infringement notices and a demerit points
system was implemented in 2007. The two mechanisms under the Act provide enforcement
agencies with effective and efficient tools to deter and handle offences committed under the
Act.
The amendment to Section 54B of the Act allows an infringement notice scheme to be
implemented by regulation. This scheme provides a more efficient mechanism for deterring
breaches of licence conditions and arrangements under the proposed output control system
than previously available. Issuing of infringement notices avoids the need for time consuming
prosecution of offences in the court system. This provides benefits both for compliance
officers and operators.
2.3.3 Demerit Points System
Similarly a demerit point system was also implemented through Regulation. This system
provides additional deterrence for habitual offenders in lieu of higher penalties per prosecuted
offence. Section 54C of the Act allows the establishment of a demerit points system under
regulations under which a licence granted under section 19 may be suspended or revoked if
the licensee accrues a prescribed number of demerit points.
2.4 Consultation Processes
The TRL Working Group (TRLWG) met in April 2013. The April meeting focused on the
developmental process of the management plan and steps to implementation. The TSFMAC
did not meet during this reporting period. The TRLRAG met in August 2013 to discuss the
stock assessment of the fishery as well as to recommend a Total Allowable Catch for the
fishery for the 2014 season.
The PZJA is responsible for monitoring the condition of the designated fisheries and for the
formulation of policies and plans for their management. The PZJA has regard to the rights and
obligations conferred on Australia by the Treaty, in particular the protection of the traditional
way of life and livelihood of the Traditional Inhabitants, including their traditional fishing.
The PZJA has a well-established consultative structure of advisory bodies, which allows for
greater participation from Traditional Inhabitant representatives at all levels of the consultative
process. Traditional Inhabitant representatives, together with industry and government
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
14
representatives, actively participate in the development of management arrangements for all
Torres Strait fisheries (Figure 3).
The TSFMAC and Torres Strait Prawn Fishery Management Advisory Committee (TSPMAC)
are advised on scientific and research matters by the Torres Strait Scientific Advisory
Committee (TSSAC). The TSSAC develops research priorities to address management
issues and reviews applications to undertake research based on the priorities.
The consultative structure for Torres Strait fisheries incorporates Australian TIB commercial
and traditional fishers, TVH commercial fishers, Australian Government and Queensland
officials, and technical experts (Figure 3) and was updated to include TRLRAG following the
decision of the PZJA 18 in July 2005.
Protected Zone Joint Authority Structure
Torres Strait Treaty / Torres Strait Fisheries Act (1984)
PZJA
Minister for Agriculture,
Fisheries and Forestry
(Chair)
PZJA Standing Committee
Senior Managers
DAFF (Chair)
AFMA
Qld PI&F
TSRA
Minister for Primary Industries,
Fisheries and Rural and
Regional Queensland
Chair
TSRA
TSSAC
TRLRAG
MACs
Working Groups
Figure 1: The consultative structure of the PZJA and relevant Advisory Committees and
Working Groups.
Consultation and communication can be difficult across the scattered islands of Torres Strait,
though are important elements in the effective management of the region’s fisheries. The
consultative committees are therefore complemented by meetings between fisheries officers
and fishermen in communities around the Torres Strait. These meetings are occasionally
supplemented by fisheries programs broadcast on Radio Torres Strait and
articles/advertisements in the Torres News.
While the TSFMAC and TSPMAC are the main means for the PZJA to obtain advice and
information, the PZJA may seek advice and views from others with relevant expertise or
interest. This includes PZJA Agencies, other government agencies, independent consultants,
operators in other fisheries and representatives of the broader community.
In addition to the PZJA committees, an advisory group of Traditional Inhabitant fishers
provides advice to TSRA on fisheries matters. Traditional Inhabitant representation on the
PZJA advisory committees and working groups are generally derived from the Community
Fisher Group. The TSRA is currently undertaking a review of the operations of the Community
Fisher Group to enhance the advice of Traditional Inhabitants to the TSRA Board.
A further review on broader administrative functions of the PZJA, including consultation, is
currently being finalised. Implementation of the recommendations of this review may also
enhance the efficiency of the current consultative structure for Torres Strait fisheries.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
2.5 Cross-jurisdictional management arrangements
AFMA and PNG National Fisheries Authority (NFA) met at the Fisheries Bilateral Meeting in
October 2013. The status of Torres Strait fisheries was discussed and catch sharing
arrangements of Article 23 Fisheries (under the Torres Strait Treaty) were agreed.
Australia and PNG entered into the Torres Strait Treaty on 15 February 1985. The Treaty is
concerned with sovereignty and maritime boundaries in the area between the two countries
and the protection of the traditional way of life, livelihoods of Traditional Inhabitants and of the
marine environment. The Treaty also established the TSPZ in which each country exercises
sovereign jurisdiction for swimming fish and sedentary species on the respective sides of the
agreed jurisdiction lines. The lines are known as the Fisheries Jurisdiction Line and Seabed
Jurisdiction Line (Figure 2).
The Treaty requires Australia and PNG to cooperate in the conservation, management and
optimum utilisation of all of the Article 23 commercial fisheries of the TSPZ. It also allows for
catch sharing arrangements between the two countries which are negotiated annually at a
fisheries bilateral meeting.
In administering the Act, the PZJA has regard to the rights and obligations conferred on
Australia by the Treaty, in particular the protection of the traditional way of life and livelihood
of the Traditional Inhabitants, including their traditional fishing.
While having obligations to protect the traditional way of life of the Traditional Inhabitants, the
PZJA is also responsible for monitoring the condition of Australian fisheries in the Torres
Strait and for the formulation of policies and plans for their management. These fisheries are
prawn, TRL, pearl shell, mackerel, bêche-de-mer, trochus, finfish, barramundi, crab and
traditional fishing (including turtle and dugong).
In addition, AFMA in conjunction with the QB&FP coordinates and delivers fisheries
management and surveillance/enforcement programs in the TSPZ on behalf of the PZJA and
in accordance with the provisions of the Act.
In October 2006 QDAFF announced implementation of a quota system in the East Coast
Fishery to complement the Torres Strait Fishery. PNG has a management plan in place for
their fishery that includes complementary management arrangements such as the same size
limits and a four month prohibition on the use of hookah and limits the number of hookahs in
the fishery to 49.
Catch sharing arrangements under the Treaty are discussed in Section 1.5.
2.6 Outcomes of review processes
Following reviews of management for TRL a quota-based management plan is a PZJA priority
and a process is in place to work with stakeholders on the development of the management
plan. Torres Strait Islanders have articulated to governments their aspiration of ownership of
the TRL resource. While programs to fulfil those aspirations have fallen short, there is a high
level of cooperation between agencies, Traditional Inhabitants and fishers in the process to
develop a management plan. To provide a path for dealing with the aspirations of both sectors
(TVH and TIB), PZJA agencies commissioned a five year business plan for the fishery. It is
hoped that implementation of recommendations from the business plan and consultation
through the TRL Working Group will allow for progress to be made in implementing a
management plan for the TRLF. However, it is not anticipated that a management plan will
be in place before 2015.
2.7 Demonstration of compliance with TAPs, recovery plans, etc
No change in the reporting period.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
As the fishery is a highly selective single species fishery and no bycatch is taken, there are no
threat abatement plans, recovery plans or bycatch reduction strategies applicable to the
fishery.
3 Research and monitoring
Catch and effort logbooks are mandatory in the TVH and for TIB fishers with vessels over 7m
in length. Fishers must record all retained catch in the logbook (target and byproduct). An
example of the TRL04 logsheet is at Attachment B. Reporting is not compulsory for TIB
fishers using smaller vessels at this time.
In January 2004, AFMA introduced the Torres Strait Seafood Buyers and Processors Docket
Book (TDB01) (Attachment C) to commercial and community freezer operators to collect data
on Islander catch. While the use of the TDB01 docket book is currently voluntary, it is
considered to be successful in monitoring the harvest of TRL by TIB fishers.
Annual Stock Assessment Research - see 5.2 Stock Assessments
Other TSSAC Funded Projects
‘Refinements to and results from the TRL Management Strategy Evaluation (MSE)
simulations applied to the Torres Strait’ (Plaganyi et al, 2013) was developed to assess and
support the management of the fishery. The MSE methodology compared social, economic
and biological trade-offs anticipated under a range of proposed alternative management
strategies, as well as the sensitivity to related external factors.
‘Environmental impacts on the TRL population in Torres Strait’ (Dennis et al 2013), assessed
the relationships between habitat variables gathered during previous TRL population surveys,
TRL abundance and the usefulness of habitat variables in improving stock prediction. The
specific aim was to determine if habitat variables could be used as covariates in the integrated
fishery model to help refine stock and TAC forecasts. Evidence suggested a relatively poor
relationship between habitat variables and TRL abundance, though seagrass cover was
reasonably well correlated at the regional level. Water temperature also showed little
correlation with growth rates of TRL and survival rates
‘Smart phone technology for remote data collection in Torres Strait Traditional Inhabitant
Finfish Fisheries’ project (Hartmann and French). This project is investigating the use of
smartphone technology for catch monitoring, which is currently a shortfall in the traditional
sector of the fishery. Improved catch data collection would improve accuracy in the
assessment of stocks and provide better information for management decisions and research.
It is hoped that such technology will reduce the burden of paperwork that appears to deter TIB
operators form using logbooks. Although this is currently only being trialled in the Torres
Strait Finfish Fishery, its application could work in the TRLF.
4 Catch data
4.1 Total catch of target species
The total catches of TRL for 2012 against the TSPZ nominal TAC of 964 tonnes:




Tropical Rock Lobster (Panulirus ornatus) catch
Non-Traditional Sector catch
Traditional Sector catch
Papua New Guinea catch
731 tonnes
370 tonnes
188 tonnes
173 tonnes
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Figure 4: Total Torres Strait Protected Zone Catches of Tropical Rock Lobster (Panulirus
ornatus) against the Torres Strait Protected Zone nominal TAC in the Torres Strait Tropical
Rock Lobster Fishery (2006-2012).
The TSPZ catch has never exceeded the nominal TSPZ TAC. The TACs are referred to as
nominal because the TAC is not individually allocated or legislated and each sector’s share is
therefore also nominal. The 2011 catch was the highest since 2005, which is considered the
most successful year in the fishery (under current management arrangements), and the TAC
was still not caught. This is due to the underperformance of the TIB and PNG sectors in the
fishery and resulting in the ongoing sustainability of the fishery.
Figure 5: Australian Catches of Tropical Rock Lobster (Panulirus ornatus) against the
Australian allocated nominal TAC in the Torres Strait Tropical Rock Lobster Fishery (20062012).
The Australian TRL catch, TVH and TIB sectors, has at times gone very close to the
Australian nominal TAC and only exceeded it in 2011. This was due to greater than expected
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
18
abundance and catching capacity of the TVH sector in particular. It should be noted as in
Figure 4 that the total TSPZ TAC was not overfished that year. The Catch Per Unit Effort
(CPUE) from the TVH sector (see Figure 8) is well above the TIB sector, as well as the PNG
sector, resulting in higher catch rates, however the lower catches of the other sectors allow
the fishery to remain sustainable under the present nominal TAC regime.
4.2 Total catch of target species taken in other fisheries
There is limited interaction of TRL with other fisheries, other than the Torres Strait Prawn
Fishery (TSPF), licensing conditions limit TSPF operators to 20kgs if caught in trawl nets, and
must be reported.
4.3 Catch of byproduct/ bycatch species
As a result of hand collection methods used, there are no non-retained species or bycatch
species in the fishery, however fishers with other endorsements are able to harvest under
those authorities while targeting TRL.
4.4 Harvest by each sector
The total catches of TRL for 2012 against the TSPZ TAC of 964 tonnes:




Tropical Rock Lobster (Panulirus ornatus) catch
Non-Traditional (TVH) Sector catch
Traditional (TIB) Sector catch
Papua New Guinea catch
731 tonnes
370 tonnes
188 tonnes
173 tonnes
The TSPZ nominal TAC, based on the CSIRO annual mid-season survey, was 871 tonnes,
though the total catch was 731 tonnes reported for the commercial sectors in 2012. The
figures from the TIB sector are likely to be slightly underestimated as reporting in this sector is
not mandatory and figures are formulated from voluntary docket book reporting.
Figure 6: Catches of Tropical Rock Lobster (Panulirus ornatus) against the TSPZ nominal
TAC by sector in the Torres Strait Tropical Rock Lobster Fishery (2006-2012).
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
There is a small recreational fishery for TRL in the Torres Strait regulated by QDAFF. The
level of traditional take of TRL in the fishery is unknown but assumed to be very small
compared to the commercial harvest based on previous CSIRO research on traditional fishing
in Torres Strait.
Illegal, unreported and unregulated fishing in the TSPZ is assumed to be small compared to
the commercial harvest based on the surveillance reports from AFMA Foreign Compliance
and QB&FP reports. There was no illegal harvest reported in 2012.
4.5 Effort data including information on any trends
Figure 7: Effort in the Tropical Rock Lobster Fishery between the TVH and TIB sectors
(2001-2012).
Effort in the TVH sector has steadily declined between 2004 and 2009 as a result of the
removal of licenses in the fishery through the buyout processes, increased in 2009, and has
been relatively consistent between 2010 and 2012.
Effort in the TIB sector has decreased significantly since 2008, from 4564 tender days in 2008
to 2554 days in 2012. It is thought to be the result of some of the best TIB divers now working
for TVH operations.
Effort from PNG has shown a relatively steady decrease over the last 15 years, believed to be
related to increasing operational costs. However, this trend is expected to change as a result
of the introduction of live product export out of PNG.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Figure 8: Catch Per Unit Effort in the Torres Strait Tropical Rock Lobster Fishery between the
TVH and TIB sectors (2007-2012).
CPUE for both the TVH and TIB sectors has been increasing over the years as fishing
practices and technology improves. Importantly, the decrease in CPUE in 2012 is not related
to a decrease in stock abundance as 2011 was an extremely productive year in the fishery
with catch rates not seen since 2005. CPUE in 2012 is still higher overall than CPUE in 2010.
The same trend has been experienced in the PNG sector.
A new diving technique is entering the fishery known as teabagging, whereby hookah divers,
using GPS units, move quickly between dive sites, only taking TRL that are in larger numbers.
This means that divers are diving significantly greater numbers of sites each day, and are
minimising searching time. This is resulting in larger catches being far less opportunistic then
previously.
4.6 Spatial issues/trends
The spatial distribution of TRL and consequently fishing effort is largely determined by the
distribution of seabed habitats which stays relatively constant over time, but also on the
distribution of food species such as bivalves. However, distribution of recruiting TRL and/or
fishing effort may also be heavily influenced by environmental conditions such as strong trade
winds and high turbidity hampering fishing. In addition, TRL are mobile and migrate out of
Torres Strait from about October onwards, hence distribution of TRL throughout the year also
changes.
The fishery-independent survey of the Torres Strait TRL population was carried out in
May/June 2013. Indices of recruiting (1+) and fished (2+) TRL abundance were estimated for
comparison with historical levels as inputs to the integrated fishery model. The mid-year
survey covered a total of 74 sites surveyed by divers. It was noted that this was one of the
worst years for weather and worst underwater visibility since the surveys began in 1989,
which can influence the model. The 2013 recruiting (1+) year-class was just below the longterm average, which was in contrast to the increasing trend during 2009-2012. The 2012
fished (2+) year-class was slightly smaller than the 2012 year-class and near the long-term
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
21
average. As the fishery targets 2+ TRL, the 2013 commercial catch is expected to be similar
to the 2012 catch, though will be dictated by distribution. The 2+ TRL were below average
across all stratums except the Mabuiag and Warraber strata.
It has been highlighted that annual variability seen in TRL distribution between locations in
Torres Strait may indicate that TRL abundance at any of the sites is influenced by travelling
TRL as well as variable environmental conditions (particularly food availability) from year to
year. One independent scientist suggested that a better predictive index of abundance might
be obtained by analysing data from a subset of key 'recruitment' sites, if such sites do exist.
As the TVH sector utilises primary boats, they have the capacity to travel further and stay at
sea for extended periods, even during adverse weather conditions. Therefore the TVH sector
can maximise opportunities at the Kirkcaldie rubble stratum, an open, exposed reef complex
that can at times yield high catch rates. This is only accessible to smaller TIB tender hookah
operations during good weather conditions. However, as noted previously, TIB operators are
now moving to primary boat operations and fishing this area.
The TIB tender operations predominately dive reefs closer to inhabited islands, therefore
catches are far more opportunistic. In 2012, the Mabuiag stratum showed good catch rates.
When this area is productive it can have significant benefits for both the TVH and TIB sector
and this appears to be the case in 2013.
Surveys of the PNG Torres Strait TRL population were conducted mid-year in 1989, 1998,
2002, 2003 and 2004 to give fishery-independent indices of the relative abundance of the
recruiting (1+) and fished (2+) year classes and size distribution data in PNG waters. It is
generally agreed between the two countries that around 15% of the Torres Strait TRL stock
reside in Papua New Guinea waters and the remaining 85% reside in Australian waters.
5 Status of target stock
5.1 Resource Concerns
There is no concern about the status of the TRLF stock. The TRLF was assessed by the
Australian Bureau of Agricultural Economics and Sciences (ABARES) in the Fishery Status
Reports 2011 as not overfished/not subject to overfishing (ABARES, 2012).
CSIRO undertake an annual stock assessment of the fishery (see section 5.2). This stock
assessment provides a nominal TAC for the TSPZ each fishing season. Based on the sector
allocations (see section 1.5), each sector is monitored for catch. The PZJA monitor the
performance of the fishery against the TSPZ TAC each year. Should the TSPZ nominal TAC
be exceeded the PZJA will investigate management options through the TRLWG and
TRLRAG for further limiting effort in the fishery. In addition the PZJA continues to monitor
catch levels from both sectors of the fishery closely. The 2013 fishing season has seen the
removal of interim management arrangements (see section 2.1), which were considered
ineffective at capping effort. This has been supported as preliminary catch data suggests that
the 2013 TSPZ catch will be well below the TSPZ TAC of 871 tonnes.
The PZJA is still firm in its commitment to implement a management plan into the TRLF that
has instruments for a quota system, capping each sector to their allocation. The
implementation of the management plan is a few years off, though the PZJA continues to
review management arrangements and the sustainability of the fishery. The TSSAC funded a
project to investigate various management arrangements and their impacts economically,
socially and culturally on the fishery; particularly the impacts of quota (see section 3).
The TRLRAG, in association with CSIRO, have developed a Harvest Strategy for the TRLF
which has target, trigger and limit reference points for estimated biomass in the fishery (see
ABARES, 2013). This model has been developed for the implementation of allocated TACs
under a management plan and is yet to be fully used in the fishery. However at the annual
TRLRAG meeting the fishery is tested against this model. In 2013 the fishery was at 70% of
22
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
the spawning stock virgin biomass. This is above the target reference point of 65% of virgin
biomass and well above the trigger reference point of 48% of virgin biomass.
5.2 Stock Assessments
The 2013 stock assessment presented to the TRLRAG in August 2013 indicated that the
Torres Strait TRL stocks were in very good condition. The stock is currently estimated to be at
113% of BMSY.
Panulirus ornatus is a single target species, which is known to spawn in the far eastern
regions of PNG and move in a clockwise direction into the TSPZ (See Figure.1). TRL is hand
collected and therefore is the only species selected in the fishery.
Due to the economic, cultural and social importance of this resource, stock assessments are
integral to ensure that harvest is sustainable. In 1989, CSIRO undertook a baseline survey, to
assess the abundance and age composition to make fishery-independent estimates of the
fishable stock, the relative abundance of recruits that comprise the target stock in the
following year, and the potential yield. This survey highlighted a poor stock–recruitment
relationship and the variability of the TRL population, including annual recruitment that varies
temporally and spatially.
This survey, or a modified version, has since been carried out annually, undertaking a midseason survey to assess the relative abundance of recruiting (1 year +) and fished (2 year +)
TRL and size-frequency of the TRL population for the upcoming season. This annual stock
survey is integrated into several developed models. These models are fitted against
additional historical stock information and the latest CPUE data to determine the following
season TAC.
The 2013 mid-season survey indicated the recruiting (1+) year-class was just below the longterm average and fished (2+) year-class was consistent with the long-term average. As the
fishery targets 2+ TRL, the 2013 commercial catch is expected to be similar to 2012. Based
on this stock assessment the recommended 2014 TAC will be 616 tonnes. The model also
determined that the current stock is estimated to be 113% of BMSY (virgin spawning biomass).
Virgin spawning biomass is a back calculation formula that tries to estimate an average
population of TRL dating back to 1973 in the absence of fishing. Additional to the annual
stock assessment, the Australian Bureau of Agricultural Economics and Sciences (ABARES)
undertakes an annual Fishery Status Report of all Commonwealth fisheries and in 2011 the
TRLF was assessed as not overfished/not subject to overfishing (ABARES, 2012).
In 2005, on the back of the Ministerial direction for all Commonwealth Fisheries to be
managed under output controls, the TRLRAG recommended that in order to support the new
TAC, effective methods for accurate TAC setting would need to be designed through preseason surveys of recruiting (1 year +) TRL abundance. The first pre-season survey was
conducted in November 2005 to provide managers with information on the abundance and
biomass of fishery recruits and the likely stock biomass available to be fished in the following
season. The pre-season surveys continued through to 2008, however ceased in 2009 due to
the delay in implementing quota into the fishery. CSIRO is expecting to undertake a preseason survey in 2015 for development of the 2015 TAC under a management plan.
5.3 Results of any stock recovery strategies
Not applicable.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
6 Interactions with protected species
6.1 Frequency and nature of interactions
Due to the highly selective nature of the fishery there is little interaction with protected
species.
6.2 Management to reduce impacts and results of such action
Not applicable.
7 Impacts of the fishery on the ecosystem in which it
operates
7.1 Results of any Ecological Risk Assessments
An “Ecological Risk Assessment for Effects of Fishing on the Torres Strait TRLF (ERA) was
developed jointly by CSIRO Marine and Atmospheric Research and AFMA in 2009.
The assessment considered how the fishery impacted on 90 protected species that were
identified as priorities through the risk assessment process. Given that the TRLF targets a
single species (Panulirus ornatus) and employs highly selectively methods of take, this fishery
was considered to be low risk and further assessment was not required.
The assessment found that TRLF interactions with any of the identified protected species
were rated as negligible or minor through the ERA process. It was also highlighted that
reasonable steps could be taken to minimise any interaction with the protected species that
were found to overlap with the area of the fishery.
The ERA for the TRLF is available on the AFMA website at www.afma.gov.au
7.2 Nature of impacts on the ecosystem
As the ERA assessed the fishery for potential impacts, envisaged that impacts on the
ecosystem would be restricted to:

Anchoring/mooring and other anthropogenic activities;

Vessel accidents leading to pollution such as oil spills; and

Concerns about translocation of species via hull and anchor fouling.
Due to the nature of the fishing methods used in the fishery being hand spears or live
collection on hookah dive gear, the direct impacts on the environment are minimal, other than
some contact with benthos and some fishers walking on reefs while collecting TRL. As larger
aggregations of TRL are targeted, localised declines in abundance may result, however due
to the life history of the species, great mobility, and the small number of active fisherman in
the fishery this is likely to be insignificant.
7.3 Management to reduce impacts and results of such action
No specific management responses have been developed as the marine environment is not
considered to be significantly impacted by the fishery. The Department of the Environment
considers that as there are no specialist predator or prey relationships in the fishery area,
there will not be significant damage to the ecosystem due to the operation of the fishery while
the stocks are maintained at sustainable levels (i.e. above the limit reference point).
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
8 Progress in implementing recommendations and
conditions resulting from the Department of the
Environment assessment of the fishery
8.1 Description of progress in implementing each recommendation
and condition
The table at Attachment A outlines the progress made against the recommendations and
conditions of the assessment as at 31 October 2013.
References
Australian Bureau of Agricultural and Resource Economics and Sciences (2013). Fishery
Status Reports 2012 – Status of Fish Stocks and Fisheries Managed by the Australian
Government, Commonwealth Department of Agriculture, Fisheries and Forestry - Australia,
Canberra.
Dennis, D., Plaganyi, E. and Haywood, M., 2013. Environmental impacts on the TRL
population in Torres Strait. CSIRO, Brisbane.
Plaganyi, E., Hutton, T., Deng, R. and Dennis, D. 2013. Refinements to and results from TRL
Management Strategy Evaluations (MSE) simulations applied to the Torres Strait. CSIRO,
Brisbane.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
ATTACHMENT A
Table 1: Conditions and Recommendations to the Australian Fisheries Management
Authority (AFMA) on the ecologically sustainable management of the Torres Strait
Tropical Rock Lobster Fishery
Condition
Level of Achievement as at
31 October 2013
1) Operation of the fishery will be The fishery continued to operate in accordance with
carried out in accordance with the the statement of management arrangements agreed
TSTRLF management regime made to by the PZJA (PZJA 16 and PZJA 20).
under the Torres Strait Fisheries Act
1984 and the Torres Strait Fisheries
Regulations 1985.
2) The PZJA to inform the
Department of the Environment of
any intended amendments to the
management arrangements that
may affect the criteria on which
Environment
Protection
and
Biodiversity Conservation Act 1999
decisions are based.
The only change in management arrangements
resulted in removing interim arrangements that were
ineffective at capping effort in the fishery. This was a
PZJA decision.
3) The PZJA to produce and present This report has been prepared to meet this reporting
reports to the Department of the requirement.
Environment annually as per
Appendix B to the Guidelines for
Ecologically
Sustainable
Management of Fisheries - 2nd
Edition.
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Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
Recommendation
Level of Achievement to
31 October 2013
1) The Protected Zone Joint Monitoring of catch and effort in the Torres Strait continues
Authority to:
to be a challenge given that catch reporting is not
mandatory in the traditional sector (TIB) of the fishery.
a) implement strategies to
Mandatory daily fishing records for the non-traditional (TVH)
improve estimates of all
are required, as well as for TIB fishers operating in a vessel
commercial harvest from the
larger then 7m in length.
Torres Strait Tropical Rock
Lobster Fishery; and
The majority of TIB catch data comes in the form of
voluntary docket books which are completed at the point of
b) develop and implement
sale. While these are a valuable data source, they are
appropriate strategies to obtain
voluntary and therefore often not completed. The burden of
improved estimates of all
paperwork is thought to be the main reason for poor
removals from the total
participation.
Tropical Rock Lobster stock.
In 2012, the Torres Strait Scientific Advisory Committee
(TSSAC) identified that ‘Improvement of monitoring of catch
and effort in all sectors of the fishery’ was a research
priority. Therefore AFMA is currently funding a research
project investigating the use of Smartphone technology for
catch monitoring.
Through the use of a smartphone application, the fishermen
record their daily catch and when the phone is within phone
reception the information is sent to AFMA. Creating an
efficient and effective reporting method.
This information can be used for improving the accuracy of
the stock assessment and for reporting. Currently this is in
a trial phase in the Torres Strait Finfish Fishery, however
should its introduction see vast improvements in
participation then it will be investigated for the TRLF.
The PZJA continues to use education on the importance of
catch reporting and monitoring with communities.
2) The Protected Zone Joint
Authority, in conjunction with
Fisheries Queensland, the
Torres Strait Tropical Rock
Lobster Resource Assessment
Group and other relevant
agencies, to continue to work
towards the development and
implementation of a stock wide
resource
assessment
for
Tropical
Rock
Lobster
incorporating stocks from the
Torres Strait Tropical Rock
Lobster Fishery, the Torres
Strait Papua New Guinea
Tropical Rock Lobster Fishery
and the Queensland Tropical
Rock Lobster Fishery.
The PZJA, in conjunction with CSIRO, have been
undertaking annual stock assessment surveys of TRL in the
TSPZ for the past 25 years. The original survey in 1989
consisted of 542 sites including PNG waters.
An
abbreviated survey, only in Australian waters, has been
carried out annually. The last full-scale stock assessment
was done in 2002, whereby the distributions of habitats and
lobsters recorded matched those in 1989. Each year the
survey informs the nominal Total Allowable Catch (TAC) for
each upcoming season for the entire TSPZ.
The PZJA continues to promote complementary
management through the TRL Resource Assessment Group
(TRLRAG) meetings which involve all three jurisdictions (the
Commonwealth, Queensland and PNG). The TRLRAG
considers both Queensland East Coast TRL (ECTRL)
Fishery and PNG catches in assessing the status of the
fishery.
The TRLRAG is the forum for the determination of the TSPZ
nominal Total Allowable Catch (TAC) for each upcoming
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
27
Recommendation
Level of Achievement to
31 October 2013
season. At the TRLRAG, both Queensland and PNG
provide updates on the performance of the respective
fisheries and outline specific data such as catch figures and
catch per unit of effort (CPUE). The information provided by
PNG is considered in the model for allocation of fishing days
for PNG vessels in Australian waters.
PNG also has observer status on the TRL Working Group
(TRLWG) and Torres Strait Fisheries Management Advisory
Committee
(TSFMAC)
both
of
which
promote
complementary management arrangements.
3) In the absence of a plan of
management for the Torres
Strait Tropical Rock Lobster
Fishery, the Protected Zone
Joint Authority to:
- investigate mechanisms that
would allow implementation of
appropriate
management
responses to any indication of
unsustainable fishing effort;
and
The PZJA continue to monitor the performance of the
fishery compared to the recommended TSPZ TAC annually
for the fishery to ensure commercial harvest is sufficiently
precautionary. If the TSPZ TAC is overcaught in a fishing
season, the PZJA will investigate if management
arrangements are needed to cap effort (see section 5.1).
Although yet to be introduced, the TRLRAG has developed
harvest control rules for the TRLF that assist in monitoring
the performance of the fishery against reference points and
threshold limits. These limits are reviewed annually at the
TRLRAG meeting (see section 5.1).
- report in the next annual
status
report
on
any
management
response
adopted, including the reason
for any nil management
response.
Based on the annual stock assessment, the fishery remains
well above these reference points and shows no signs of
unsustainable fishing including catch figures and CPUE
data. Apart from commencing the development of a
management plan, undertaking the fishery independent
survey, conducting stock assessment and reviewing
research needs, no other management responses have
The Protected Zone Joint
been considered necessary since the WTO was initiated.
Authority to continue to work
towards
developing
and The PZJA remains committed to formal management
implementing
long
term arrangements that include output controls for the TRLF. A
management
arrangements management plan is in development through the TRLWG
that adequately take account and a timeline has been endorsed for implementation by
of all removals from the total 2015. The quota-based Plan will provide a mechanism to
tropical rock lobster stock.
set sustainable allowable catches and to enforce the catch
limits.
Further based on the Australian Bureau of Agricultural
Economics and Sciences (ABARES) Fishery Status Reports
201, the TRLF was assessed as not overfished/not subject
to overfishing under current management arrangements
(ABARES, 2012).
4) In the absence of new
management arrangements in
the Torres Strait Tropical Rock
Lobster Fishery, the Protected
Zone
Joint
Authority
to
continue to monitor and
actively manage the risks of
illegal,
unregulated
and
unreported fishing in the
Routine compliance monitoring of illegal, unregulated and
unreported (IUU) fishing is ongoing and is conducted on the
basis of risk assessments. AFMA retains a strong focus on
responding to IUU fishing.
The PZJA continues to consult with other relevant
jurisdictions through formal and informal channels including
the bi-lateral meetings with PNG and the PZJA consultative
structure. In addition, AFMA Foreign Compliance officers
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013
28
Recommendation
Level of Achievement to
31 October 2013
Torres Strait Tropical Rock will continue to conduct regular formal and informal
Lobster Fishery.
discussion regarding IUU fishing with their PNG National
Fisheries Authority counterparts. Australia will continue to
support where possible cross jurisdictional training providing
opportunities for capacity building by PNG compliance
officers.
Conditions on cross-border endorsements provided to PNG
vessels under the Treaty obligations are negotiated on an
annual basis to reduce risk of illegal fishing in Australian
waters.
5) The Protected Zone Joint
Authority to undertake an
appropriate compliance risk
assessment of the Torres
Strait Tropical Rock Lobster
Fishery
when
new
management arrangements in
the fishery are put in place.
Routine compliance monitoring of IUU fishing is ongoing
and is conducted on the basis of risk assessments. AFMA
retains a strong focus on responding to IUU fishing. This will
continue to be a focus in developing new management
arrangements.
29
Annual Report – Torres Strait Tropical Rock Lobster Fishery 2013