Assessment of the
Queensland
East Coast Bêche-de-mer Fishery
JULY 2011
© Commonwealth of Australia 2011
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior
written permission from the Commonwealth, available from the Department of Sustainability, Environment, Water, Population and Communities.
Requests and inquiries concerning reproduction and rights should be addressed to:
Assistant Secretary
Marine Biodiversity Policy Branch
Department of Sustainability, Environment, Water, Population and Communities
GPO Box 787
Canberra ACT 2601
Disclaimer
This document is an assessment carried out by the Department of Sustainability, Environment, Water, Population and Communities of a
commercial fishery against the Australian Government Guidelines for the Ecologically Sustainable Management of Fisheries – 2nd Edition. It forms
part of the advice provided to the Minister for Sustainability, Environment, Water, Population and Communities on the fishery in relation to
decisions under Parts 13 and 13A of the Environment Protection and Biodiversity Conservation Act 1999. The views expressed do not necessarily
reflect those of the Minister for Sustainability, Environment, Water, Population and Communities or the Australian Government.
While reasonable efforts have been made to ensure that the contents of this report are factually correct, the Australian Government does not accept
responsibility for the accuracy or completeness of the contents, and shall not be liable for any loss or damage that may be occasioned directly or
indirectly through the use of, or reliance on, the contents of this report. You should not rely solely on the information presented in the report when
making a commercial or other decision.
Contents
Table 1: Summary of the East Coast Bêche-de-mer Fishery ....................................
1
Table 1 contains a brief overview of the operation of the fishery including:
gear used, species targeted, byproduct species, bycatch species, annual
catch, management regime and ecosystem impacts.
Table 2: Progress in implementation of recommendations and conditions made
in the 2007 assessment of the East Coast Bêche-de-mer Fishery ..............
6
Table 2 contains an update on the progress that has been made by the
fishery’s management agency in implementing the conditions and
recommendations that formed part of the fishery’s previous approved
wildlife trade operation declaration.
Table 3: The Department of Sustainability, Environment, Water, Population
and Communities' assessment of the East Coast Bêche-de-mer Fishery
against the requirements of the EPBC Act related to decisions made
under Part 13 and Part 13A ..........................................................................
9
Table 3 contains the department’s assessment of the East Coast
Bêche-de-mer Fishery's management arrangements against all the relevant
parts of the Environment Protection and Biodiversity Conservation Act 1999
that the delegate of the Minister for Sustainability, Environment, Water,
Population and Communities must consider before making a decision.
The Department of Sustainability, Environment, Water, Population and
Communities’ final conditions and recommendations to Fisheries
Queensland for the East Coast Bêche-de-mer Fishery ...............................
23
This section contains the department’s assessment of the East Coast
Bêche-de-mer Fishery's performance against the Australian Government’s
Guidelines for the Ecologically Sustainable Management of Fisheries 2nd Edition and outlines the reasons the department recommends that the
fishery be declared an approved wildlife trade operation under Part 13A of
the EPBC Act.
Table 4: East Coast Bêche-de-mer Fishery Assessment - Summary of Issues,
Conditions and Recommendations - July 2011 ...........................................
26
Table 4 contains a description of the issues identified by the department
with the current management regime for the East Coast Bêche-de-mer
Fishery and outlines the proposed conditions and recommendations that
would form part of the delegate of the minister’s decision to declare the
fishery an approved wildlife trade operation under Part 13A of the
EPBC Act.
References
..........................................................................................................................
31
Acronyms
..........................................................................................................................
31
Table 1: Summary of the East Coast Bêche-de-mer Fishery
The East Coast Bêche-de-mer Fishery is a multi species fishery
Fishery description
harvesting a range of sea cucumber species by means of hand collection,
for the production of bêche-de-mer. (The terms bêche-de-mer [French]
and trepang [Indonesian] are interchangeable. They refer to the
processed [dried, boiled or smoked] body wall of sea cucumber.)
Publicly available
information relevant
to the fishery
Target Species





Queensland Fisheries Act 1994
Queensland Fisheries Regulation 2008
Queensland Marine Parks Act 2004
Great Barrier Reef Marine Park Act 1975 (Commonwealth)
East Coast Bêche-de-mer Fishery 2010, Progress against SEWPaC
conditions and recommendations
 East Coast Bêche-de-mer Fishery 2009, Progress against DEWHA
conditions and recommendations
 Annual Status Report 2010, East Coast Bêche-de-mer Fishery
 Annual Status Report 2009, East Coast Bêche-de-mer Fishery
 Annual Status Report 2008, East Coast Bêche-de-mer Fishery
All species of sea cucumber are permitted to be harvested (with the
exception of black teatfish (Holothuria whitmaei) which has a quota of
0 tonnes (t)).
The primary target species currently include:
 burrowing blackfish (Actinopyga spinea) - approximately 70% of
2009-10 total harvest;
 sandfish (Holothuria scabra) (negligible harvest in 2008-09 or
2009-10); and
 white teatfish (Holothuria nobilis) approximately 20% of 2009-10
total harvest.
Secondary target species include:
 blackfish (Actinopyga miliaris);
 curryfish (Stichopus variegates) approximately 9% of 2009-10 total
harvest;
 deepwater redfish (Actinopyga echinites);
 elephant trunkfish (Holothuria fuscopunctata);
 golden sandfish (Holothuria scabra var. versicolor);
 greenfish (Stichopus chloronotus);
 lollyfish (Holothuria atra);
 prickly redfish (Thelenota ananas); and
 surf redfish (Actinopyga mauritiana).
Sea cucumbers are found on coral reefs and adjacent shoals, seagrass
beds and sandy and silty benthos in shallow tropical seas. The habitat of
sea cucumber species ranges from intertidal and inshore mudflats to
inshore reefs and deepwater areas. Sea cucumber stocks generally are
considered particularly vulnerable to over exploitation due to limited
dispersal, patchy distribution, ease of collection, slow recovery from
over fishing and the limited available information on biological and
spatial distribution.
1
Fishery status
The stock status of Queensland's east coast sea cucumber stocks has not
been assessed.
Fisheries Queensland introduced a stock status assessment framework
across all fisheries in 20101. Fisheries Queensland's 2010 annual status
report for the East Coast Bêche-de-mer Fishery indicates that the
stock status of the key target species will be assessed as part of the 2011
stock status program and reported in the 2011 annual status report.
Area
The area of operation of the East Coast Bêche-de-mer Fishery includes
Queensland and Commonwealth waters off the east coast of Queensland
from Cape York in the north to Tin Can Bay in the south (Figure 1). The
area of the fishery includes the Great Barrier Reef Marine Park. For the
management of white teatfish, the fishery is divided into two zones
(Zone A and Zone B, figure 1).
Under an Offshore Constitutional Settlement between the Australian
Government and the Queensland Government, the fishery is managed
by Fisheries Queensland under Queensland legislation.
Figure 1: Map showing the area of the East Coast Bêche-de-mer Fishery
(Source: Fisheries Queensland)
1
Framework for defining stock status - Fisheries Queensland - April 2010.
2
Gear
Harvesting is permitted by hand collection only. Commercial fishers are
permitted to free dive or to use hookah or Self Contained Underwater
Breathing Apparatus (SCUBA).
Recreational fishers are not permitted to use hookah or SCUBA.
Byproduct, bycatch
and protected species
interactions2
There is no byproduct in the East Coast Bêche-de-mer Fishery as
operators are permitted to target all species of sea cucumber. Due to the
selective harvest method (hand-collection only) and targeted harvesting,
there is negligible bycatch in the fishery. Similarly, interactions with
protected species are likely to be minimal. No interactions with
protected species have been reported from the fishery to date.
Season
Year round (July to June), highest harvest is usually in the summer
months.
Commercial harvest
2009-10
The commercial harvest was 352 t landed form (salted/frozen boiled) in
2009-10.
Fisheries Queensland reported that catch composition during 2009-10
was similar to that in 2008-09, with burrowing blackfish contributing
70% of the total catch, white teatfish 20% and curryfish species
approximately 9%. Fisheries Queensland indicated that the increase in
curryfish harvest since 2008 is related to developing commercial interest
in this species as processing methods improve.
Value of commercial
harvest 2009-2010
$4.9 million
Commercial licences
issued 2009-2010
18 licences were held by three operators during 2009-10, of which
seven licences accessed the fishery. During 2008-09, six of the 18
licences accessed the fishery.
Take by other sectors
Recreational and Indigenous harvest levels are considered negligible.
A range of sea cucumber species are harvested in the sea cucumber
sector of the adjacent Coral Sea Fishery and in the Torres Strait
Bêche-de-mer Fishery (currently, there is little fishing activity in the
Torres Strait fishery). Provisions are in place in the sea cucumber sector
of the Coral Sea Fishery which require fishing operators to move their
mothership once a specified amount of quota or effort is reached. A
three-year rotational zoning system is implemented in licence conditions
for 21 reefs in the Coral Sea Fishery (Australian Fisheries Management
Authority 2010).
Two developmental fishing permits were issued by
Fisheries Queensland in 2011, allowing harvest of sea cucumbers in the
Gulf of Carpentaria in waters managed by Queensland.
Export
The primary export market is China.
Management
arrangements
The fishery is managed under the Queensland Fisheries Act 1994 and
the Queensland Fisheries Regulation 2008.
Changes to management arrangements
A performance measurement system was introduced in 2008 to
formalise the objectives, performance indicators, performance measures
and management responses for the fishery. The 2009 and 2010 annual
status reports for the fishery contain reports against the performance
indicators.
‘Protected species’ means all species listed under Part 13 of the EPBC Act, including whales and other
cetaceans and threatened, marine and migratory species.
2
3
In 2009, licence conditions were amended to reflect a change to
reporting arrangements, to state quota as weight in landed form
(salted/frozen boiled) rather than wet gutted form. Based on the agreed
weight conversion, the total allowable commercial catch for the whole
of the fishery expressed as landed/processed weight is 361 t
(380 t wet weight).
Licence conditions were also amended to implement a reduction in the
total allowable commercial catch of white teatfish and reallocation of
that amount of quota to the other species quota group, commencing in
the 2011-2012 fishing season.
Current management measures include:
 limited entry;
 gear restrictions – hand harvest only with a maximum of ten
divers fishing at one time (industry has voluntarily further
limited this to no more than four divers fishing at one time);
 vessel monitoring systems required on all primary boats;
 species specific size limits based on estimated size at maturityminimum size limits are least 15% greater than the best
estimates of size at first maturity for each species; and
 total allowable commercial catch – 361 t (landed form)
comprising;
- black teatfish - 0 t,
- white teatfish - 53 t - divided into 40 t north of 19°S (Zone 1)
and 13 t south of 19°S (Zone 2), and
- all other species - 308 t combined; and
 annual review of the fishery against management objectives,
performance indicators and performance measures3.
Areas closed to fishing for sea cucumbers apply within parts of the
Great Barrier Reef Marine Park (implemented by Great Barrier Reef
Marine Park Authority) and Queensland State Marine Parks (in the
Great Barrier Reef Coast Marine Park and Great Sandy Marine Park).
Under a memorandum of understanding between licence holders, the
industry operates a voluntary rotational zoning scheme. The fishery area
is divided into 154 zones (each approximately 100 to 150 square
nautical miles). Each zone can be fished for a maximum of 15 days in
any one year and each zone is allocated for fishing in one out of every
three years. This allows for stock and habitat recovery. (The rotational
zoning scheme does not apply to harvest of burrowing blackfish.)
A recreational bag limit of a maximum of five sea cucumbers in total
applies (all species may be caught other than black teatfish).
Fisheries Queensland has advised that it is currently developing a
publicly available Statement of Management Arrangements for the
East Coast Bêche-de-mer Fishery. The Statement of Management
Arrangements will contain information about the operational and
reporting requirements for the fishery and will describe how the fishery
will be managed. Fisheries Queensland intends that operation in
accordance with the Statement of Management Arrangements will
become a condition of all licences issued in the fishery.
3
Performance Measurement System - East Coast Bêche-de mer Fishery - Version 1 November 2008
4
Ecosystem Impacts
Due to harvesting methods in the fishery being restricted to
hand collection, impacts on the physical ecosystem are likely to be
minimal.
Preliminary research indicates that sea cucumbers play an important role
in the nutrient recycling pathways of benthic environments. Along with
total allowable catches for target species, the rotational zoning scheme
minimises the potential for localised depletion of sea cucumber species
as it allows for a two year recovery period of the stock.
Impacts on World
Heritage property
and the Great
Barrier Reef Marine
Park
The assessment also considered the possible impacts on the World
Heritage values of the Great Barrier Reef Marine Park and the Great
Barrier Reef World Heritage Area. Under the Environment Protection
and Biodiversity Conservation Act 1999 (EPBC Act), a person may not
take an action that has, will have or is likely to have a significant impact
on the world heritage values of a declared World Heritage property.
The fishery operates within the Great Barrier Reef Marine Park and is
subject to spatial zoning arrangements that are designed to protect the
biodiversity and health of the marine park. An estimated 37% of
commercially diveable sea cucumber habitat in the Great Barrier Reef
Marine Park is closed to fishing. Like other dive based fisheries,
operators in the East Coast Bêche-de-mer Fishery require a permit from
the Great Barrier Reef Marine Park Authority to operate within the
Great Barrier Reef Marine Park.
Due to the limited entry, spatial zoning arrangements, the benign
harvesting method used in the fishery (hand collection), gear, size and
harvest restrictions and the voluntary rotational zoning scheme,
significant impacts on the Great Barrier Reef Marine Park or the World
Heritage values of the Great Barrier Reef World Heritage Area are
considered unlikely.
On this basis the department considers that an action taken by an
individual fisher, acting in accordance with the management regime for
the East Coast Bêche-de-mer Fishery in force under the Queensland
Fisheries Regulation 2008 and the Queensland Fisheries Act 1994,
would not be expected to have a significant impact on the Great Barrier
Reef Marine Park or the World Heritage values of the Great Barrier
Reef World Heritage Area.
Wetlands of
International
Importance
The assessment considered the possible impacts on the ecological
character of the Sandy Strait, Shoalwater and Corio Bays and Bowling
Green Bay Ramsar Sites.
There are several areas closed to fishing for sea cucumbers in the areas
of the wetlands of international importance that occur in the East Coast
Bêche-de-mer Fishery. Additionally, effort and is limited and a benign
harvesting method (hand collection) used in the fishery
On this basis the department considers that an action taken by an
individual fisher, acting in accordance with the East Coast
Bêche-de-mer Fishery management regime in force under the
Queensland Fisheries Regulation 2008 and the Queensland Fisheries
Act 1994, would not be expected to have a significant impact on a
Wetland of International Importance.
5
Table 2: Progress in implementation of recommendations and conditions made in the 2007 assessment of the East Coast Bêche-de-mer
Fishery
Condition
Progress
Recommended Action
1. Operation of the ECBDMF
Fisheries Queensland has advised that the East Coast Bêche-de-mer
Fishery continues to be managed in accordance with the management
regime made under the Queensland Fisheries Act 1994 and the
Queensland Fisheries Regulation 2008.
The Department of Sustainability, Environment,
Water, Population and Communities considers
that this condition has been met.
Fisheries Queensland has advised the department of upcoming changes
to the fishery management arrangements on each occasion.
The department considers that this condition has
been met.
will be carried out in
accordance with the
Queensland Fisheries Act
1994 and the Queensland
Fisheries Regulation 1995.
2. The Queensland
Department of Primary
Industries and Fisheries
(DPI&F) to inform the
Department of the
Environment, Water,
Heritage and the Arts
(DEWHA) 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.
3. DPI&F to continue to
produce and present reports
to DEWHA annually as per
Appendix B to the
Guidelines for the
Ecologically Sustainable
Management of Fisheries 2nd Edition.
The department recommends that a new
approved wildlife trade operation declaration for
the East Coast Bêche-de-mer Fishery specify a
similar condition (see Condition 1, Table 4).
The department recommends that a new
approved wildlife trade operation declaration for
the East Coast Bêche-de-mer Fishery specify a
similar condition (see Condition 2, Table 4).
Fisheries Queensland has provided annual status reports and annual
reports stating progress against conditions and recommendations to the
department.
The department considers that this condition has
been met.
The department recommends that a new
approved wildlife trade operation declaration for
the East Coast Bêche-de-mer Fishery specify a
similar condition (see Condition 3, Table 4).
6
Recommendation
Progress
Recommended Action
1. DPI&F to review the
The department has received Fisheries Queensland's report Evaluating the
effectiveness of the Rotational Zoning Scheme for the Queensland East
Coast Bêche-de-mer Fishery, March 2011 as part of the 2011 submission
for reassessment of the fishery under EPBC Act.
The department considers that Fisheries Queensland
has met this recommendation to the extent possible.
effectiveness of the RZS and
provide a report to DEWHA
on the species composition of
the RZS zones.
The report reviewed the effectiveness of the Rotational Zoning Scheme in
reducing the potential for localised and serial depletion. The report found
that, although the Rotational Zoning Scheme is voluntary, the level of
compliance was high, suggesting that all licence holders within the fishery
operate in accordance with the scheme. The report concluded that the
implementation of the Rotational Zoning Scheme has reduced the risk of
localised depletion of species taken in the East Coast Bêche-de-mer Fishery
by distributing the catch and effort throughout the fishery.
The department recommends that
Fisheries Queensland act on the recommendations
of the review and further develop appropriate
spatial reporting and analysis for key target species
and emerging target species.
(See Recommendation 4, Table 4.)
Fisheries Queensland was unable to report on species composition within
the zones as the current logbook reporting frameworks do not allow for
such a high level of specificity. The evaluation report included three
recommendations which may help to determine this level of specificity,
such as reporting zones and location, rather than just location, in logbooks.
2. DPI&F to incorporate
additional performance
measures, relating to the
outcomes of resource
assessments for key target
species, into the Performance
Measurement System, with
priority given to
burrowing blackfish.
In its 2007 assessment of the East Coast Bêche-de-mer Fishery, the
department noted that the draft performance measurement system for the
fishery included a review reference point of 15 tonnes (t) for burrowing
blackfish. The department also noted that resource assessments had been
undertaken in two key areas for burrowing blackfish, as the annual catch of
burrowing blackfish had exceeded 15 t in 2005. A recommendation was
made to include additional performance measures, related to the outcomes
of resource assessments for key species whose review reference points have
been triggered, as a means of on-going review. Potential future measures
discussed in the assessment included definition of an available biomass
limit reference point that if reached would trigger management response.
The department considers that this recommendation
has been met.
However the department notes that industry
resource surveys required as a management
response to triggering of a limit reference point for
burrowing blackfish have not been delivered. A
new condition and a recommendation have been
developed to address this issue (see Condition 4
and Recommendation 1, Table 4).
The Performance Measurement System - Queensland East Coast
Bêche-de-mer Fishery - Version 1 November 2008 includes a series of
performance indicators and performance measures with management
response related to the outcomes of resources assessments and re-surveys.
Fisheries Queensland advises that they expect the resource assessments and
re-surveys to enable estimates of sustainable yield to be made.
7
Recommendation
Progress
Recommended Action
3. DPI&F to identify as a
Fisheries Queensland developed the Harvest Fishery Research &
Development Priorities (2008-2013) plan in 2008. The plan identified a
number of high to very high priority research needs aimed at improving the
sustainable management of the East Coast Bêche-de-mer fishery. These
priorities focused around adaptive management strategies, life history
parameters of key target species, refining conversion factors and resolving
taxonomy (see Table 4 for more information).
The department considers that this condition has
been met and is ongoing (see Recommendation 2,
Table 4).
priority and support research
into the basic biology and
recruitment of key target
species, including
burrowing blackfish, and the
ecological impact of sea
cucumber harvest in the
ECBDMF.
8
Table 3: The Department of Sustainability, Environment, Water, Population and Communities assessment of the East Coast Bêche-de-mer
Fishery against the requirements of the EPBC Act related to decisions made under Parts 13 and 13A.
Please Note – the table below is not a complete or exact representation of the EPBC Act. It is intended as a summary of relevant sections and
components of the EPBC Act to provide advice on the fishery in relation to decisions under Parts 13 and 13A. A complete version of the EPBC Act
can be found on the department’s website.
Part 13
Division 1 Listed threatened species
Section 208A Minister may accredit plans or regimes
(1) Minister may, by instrument in writing, accredit for the purposes of
this Division:
(c)
a plan of management, or a policy, regime or any other
arrangement, for a fishery that is:
i. made by a State or self-governing Territory; and
ii. in force under a law of the State or self-governing
Territory;
if satisfied that:
(f)
the plan, regime or policy requires persons engaged in
fishing under the plan, regime or policy to take all
reasonable steps to ensure that members of listed threatened
species (other than conservation dependent species) are not
killed or injured as a result of the fishing; and
(g)
the fishery to which the plan, regime or policy relates does
not, or is not likely to, adversely affect the survival or
recovery in nature of the species.
The department’s assessment of the Queensland East Coast
Bêche-de-mer Fishery
The Queensland East Coast Bêche-de-mer Fishery will be managed
under the Queensland Fisheries Act 1994 and the Queensland
Fisheries Regulation 2008.
The management regime for the East Coast Bêche-de-mer Fishery was
first accredited in December 2004 and reaccredited in April 2008
following the replacement of the Queensland Fisheries Regulation
1995 with the Fisheries Regulation 2008. The department considers
that the management regime for the East Coast Bêche-de-mer Fishery
still requires operators to take all reasonable steps to ensure that listed
threatened species are not killed or injured as a result of the fishing.
Due to the selective nature of the fishing method (hand collection), the
likelihood of interactions with listed threatened species is very low.
Therefore, the department considers the current operation of the
East Coast Bêche-de-mer Fishery is not likely to adversely affect the
survival or recovery in nature of any listed threatened species.
9
Part 13 (cont.)
Division 2 Migratory species
Section 222A Minister may accredit plans or regimes
(1) Minister may, by instrument in writing, accredit for the purposes of
this Division:
(c)
a plan of management, or a policy, regime or any other
arrangement, for a fishery that is:
i. made by a State or self-governing Territory; and
ii. in force under a law of the State or self-governing
Territory;
if satisfied that:
(f)
the plan, regime or policy requires persons engaged in
fishing under the plan, regime or policy to take all
reasonable steps to ensure that members of listed migratory
species are not killed or injured as a result of the fishing;
and
(g)
the fishery to which the plan, regime or policy relates does
not, or is not likely to, adversely affect the conservation
status of a listed migratory species or a population of that
species.
The department’s assessment of the Queensland East Coast
Bêche-de-mer Fishery
The Queensland East Coast Bêche-de-mer Fishery will be managed
under the Queensland Fisheries Act 1994 and the Queensland
Fisheries Regulation 2008.
The management regime for the East Coast Bêche-de-mer Fishery was
first accredited in December 2004 and reaccredited in April 2008
following the replacement of the Queensland Fisheries Regulation
1995 with the Fisheries Regulation 2008. The department considers
that the management regime for the East Coast Bêche-de-mer Fishery
still requires operators to take all reasonable steps to ensure that listed
migratory species are not killed or injured as a result of the fishing.
Due to the selective nature of the fishing method (hand collection), the
likelihood of interactions with listed threatened species is very low.
Therefore, the department considers the current operation of the
East Coast Bêche-de-mer Fishery is not likely to adversely affect the
conservation status of a listed migratory species or a population of that
species.
10
Part 13 (cont.)
Division 3 Whales and other cetaceans
Section 245 Minister may accredit plans or regimes
(1) Minister may, by instrument in writing, accredit for the purposes of
this Division:
(c)
a plan of management, or a policy, regime or any other
arrangement, for a fishery that is:
i. made by a State or self-governing Territory; and
ii. in force under a law of the State or self-governing
Territory;
if satisfied that:
(f)
the plan, regime or policy requires persons engaged in
fishing under the plan, regime or policy to take all
reasonable steps to ensure that cetaceans are not killed or
injured as a result of the fishing; and
(g)
the fishery to which the plan, regime or policy relates does
not, or is not likely to, adversely affect the conservation
status of a species of cetacean or a population of that
species.
The department’s assessment of the Queensland East Coast
Bêche-de-mer Fishery
The Queensland East Coast Bêche-de-mer Fishery will be managed
under the Queensland Fisheries Act 1994 and the Queensland
Fisheries Regulation 2008.
The management regime for the East Coast Bêche-de-mer Fishery was
first accredited in December 2004 and reaccredited in April 2008
following the replacement of the Queensland Fisheries Regulation
1995 with the Fisheries Regulation 2008. The department considers
that the management regime for the East Coast Bêche-de-mer Fishery
still requires operators to take all reasonable steps to ensure that
cetaceans are not killed or injured as a result of the fishing.
Due to the selective nature of the fishing method (hand collection), the
likelihood of interactions with listed threatened species is very low.
Therefore, the department considers the current operation of the
East Coast Bêche-de-mer Fishery is not likely to adversely affect the
conservation status of a species of cetacean or a population of that
species.
11
Part 13 (cont.)
Division 4 Listed marine species
Section 265 Minister may accredit plans or regimes
(1) Minister may, by instrument in writing, accredit for the purposes of
this Division:
(c)
a plan of management, or a policy, regime or any other
arrangement, for a fishery that is:
i.
made by a State or self-governing Territory; and
ii.
in force under a law of the State or self-governing
Territory;
if satisfied that:
(f)
the plan, regime or policy requires persons engaged in
fishing under the plan, regime or policy to take all
reasonable steps to ensure that members of listed marine
species are not killed or injured as a result of the fishing;
and
(g)
the fishery to which the plan, regime or policy relates does
not, or is not likely to, adversely affect the conservation
status of a listed marine species or a population of that
species.
The department’s assessment of the Queensland East Coast
Bêche-de-mer Fishery
The Queensland East Coast Bêche-de-mer Fishery will be managed
under the Queensland Fisheries Act 1994 and the Queensland
Fisheries Regulation 2008.
The management regime for the East Coast Bêche-de-mer Fishery was
first accredited in December 2004 and reaccredited in April 2008
following the replacement of the Queensland Fisheries Regulation
1995 with the Fisheries Regulation 2008. The department considers
that the management regime for the East Coast Bêche-de-mer Fishery
still requires operators to take all reasonable steps to ensure that listed
marine species are not killed or injured as a result of the fishing.
Due to the selective nature of the fishing method (hand collection), the
likelihood of interactions with listed threatened species is very low.
Therefore, the department considers the current operation of the
East Coast Bêche-de-mer Fishery is not likely to adversely affect the
conservation status of a listed marine species or a population of that
species.
12
Part 13 (cont.)
Section 303AA Conditions relating to accreditation of plans,
regimes and policies
The department’s assessment of the Queensland East Coast
Bêche-de-mer Fishery
(1)
This section applies to an accreditation of a plan, regime or policy
under section 208A, 222A, 245 or 265.
The department recommends that the East Coast Bêche-de-mer Fishery
be accredited under sections 208A, 222A, 245 and 265.
(2)
The Minister may accredit a plan, regime or policy under that
section even though he or she considers that the plan, regime or
policy should be accredited only:
(a) during a particular period; or
(b) while certain circumstances exist; or
(c) while a certain condition is complied with.
In such a case, the instrument of accreditation is to specify the
period, circumstances or condition.
The department considers that no conditions are required for the
accreditation of the East Coast Bêche-de-mer Fishery under Part 13.
(7) The Minister must, in writing, revoke an accreditation if he or she is
satisfied that a condition of the accreditation has been contravened.
13
Part 13A
Section 303BA Objects of Part 13A
(1) The objects of this Part are as follows:
(a) to ensure that Australia complies with its obligations under CITES4 and the Biodiversity Convention;
(b) to protect wildlife that may be adversely affected by trade;
(c) to promote the conservation of biodiversity in Australia and other countries;
(d) to ensure that any commercial utilisation of Australian native wildlife for the purposes of export is managed in an ecologically
sustainable way;
(e) to promote the humane treatment of wildlife;
(f)
to ensure ethical conduct during any research associated with the utilisation of wildlife; and
(g) to ensure the precautionary principle is taken into account in making decisions relating to the utilisation of wildlife.
4
Convention on International Trade in Endangered Species of Wild Fauna and Flora
14
Part 13A (cont.)
Section 303DC Minister may amend list
(1) Minister may, by instrument in published in the Gazette, amend the list
referred to in section 303DB (list of exempt native specimens) by:
(a) including items in the list;
(b) deleting items from the list; or
(c) imposing a condition or restriction to which the inclusion of a
specimen in the list is subject; or
(d) varying of revoking a condition or restriction to which the
inclusion of a specimen in the list is subject; or
(e) correcting an inaccuracy or updating the name of a species.
(1A) In deciding whether to amend the list referred to in section 303DB
(list of exempt native specimens) to include a specimen derived from
a commercial fishery, the Minister must rely primarily on the
outcomes of any assessment in relation to the fishery carried out for
the purposes of Division 1 or 2 of Part 10.
(1C) The above does not limit the matters that may be taken into account
in deciding whether to amend the list referred to in section 303DB
(list of exempt native specimens) to include a specimen derived from
a commercial fishery.
The department’s assessment of the Queensland East Coast Bêche-de-mer
Fishery
No assessment of the East Coast Bêche-de-mer Fishery has been carried out
under Part 10 of the EPBC Act.
It is not possible to list exhaustively the factors that you may take into account in
amending the list of exempt native specimens. The objects of Part 13A, which are
set out above this table, provide general guidance in determining factors that
might be taken into account. A matter that is relevant to determining whether an
amendment to the list is consistent with those objects is likely to be a relevant
factor.
The department considers that the amendment of the list of exempt native
specimens to include product taken in the East Coast Bêche-de-mer Fishery while
the fishery is the subject of a declaration as an approved wildlife trade operation
would be consistent with the provisions of Part 13A as:
 the fishery will not harvest any CITES listed species;
 there are management arrangements in place to ensure that the resource is
being managed in an ecologically sustainable way (see Table 1);
 the operation of the East Coast Bêche-de-mer Fishery during the period of the
recommended declaration as an approved wildlife trade operation is unlikely
to be unsustainable or threaten biodiversity; and
 the Environment Protection and Biodiversity Conservation Regulations 2000
(EPBC Regulations) do not specify fish as a class of animal in relation to the
15
welfare of live specimens.
(3) Before amending the list referred to in section 303DB (list of exempt
native specimens), the Minister:
(a)
must consult such other Minister or Ministers as the Minister
considers appropriate; and
(b)
must consult such other Minister or Ministers of each State and
self-governing Territory as the Minster considers appropriate;
and
(c)
may consult such other persons and organisations as the
Minister considers appropriate.
The department considers that the consultation requirements have been met. On
10 August 2004, the then Minister for the Environment and Heritage wrote to all
fisheries ministers seeking their views on inclusion of product derived from
commercial fisheries in the list of exempt native specimens, while subject to
declaration as approved wildlife trade operations. Responses in support of the
proposal were received from all state and territory fisheries ministers and the
Commonwealth minister.
(5) A copy of an instrument made under section 303DC is to be made
available for inspection on the Internet.
The instrument for the East Coast Bêche-de-mer Fishery made under section
303DC will be gazetted and made available on the department’s website.
The public comment period on the submission from Fisheries Queensland for the
East Coast Bêche-de-mer Fishery sought comment on the submission and
provided sufficient opportunity for consultation with other persons and
organisations.
16
Part 13A (cont.)
Section 303FN Approved wildlife trade operation
The department’s assessment of the Queensland East Coast Bêche-de-mer
Fishery
(2) The Minister may, by instrument published in the Gazette, declare that a
specified wildlife trade operation is an approved wildlife trade
operation for the purposes of this section.
(3) The Minister must not declare an operation as an approved wildlife
trade operation unless the Minister is satisfied that:
(a) the operation is consistent with the objects of Part 13A of the Act;
and
(b)
the operation will not be detrimental to:
i. the survival of a taxon to which the operation relates; or
ii. the conservation status of a taxon to which the operation
relates; and
The department considers that the operation of the East Coast Bêche-de-mer
Fishery is consistent with the objects of Part 13A (listed above) as:
 the fishery will not harvest any CITES listed species;
 there are management arrangements in place to ensure that the resource is
being managed in an ecologically sustainable way (see Table 1). Completion
of Condition 4 (see Table 4 of this report) is an important factor in meeting
this requirement;
 the operation of the East Coast Bêche-de-mer Fishery during the period of the
recommended declaration as an approved wildlife trade operation is unlikely
to be unsustainable and threaten biodiversity. Completion of Condition 4 (see
Table 4 of this report) is an important factor in meeting this requirement; and
 the EPBC Regulations do not specify fish as a class of animal in relation to
the welfare of live specimens.
The department considers that the operation of the East Coast Bêche-de-mer
Fishery during the period of the recommended declaration as an approved
wildlife trade operation will not be detrimental to the survival or conservation
status of a taxon to which it relates, given the management measures currently in
place, which include:
 limited entry;
 gear restrictions (hand harvesting only, with restrictions on the number of
divers operating);
 area closures;
 species specific minimum size limits based on estimated size at reproductive
maturity;
 a total allowable catch for a suite of target species; and
 a reviewable performance measurement system with management objectives
and performance measures for target species including limit reference points
17
and management responses.
Under an industry Memorandum of Understanding, a rotational zoning scheme
also applies to harvest of a number of target species.
(ba) the operation will not be likely to threaten any relevant ecosystem
including (but not limited to) any habitat or biodiversity; and
The department considers that the operation of the East Coast Bêche-de-mer
Fishery during the period of the recommended declaration as an approved
wildlife trade operation will not threaten any relevant ecosystem, given the
management measures currently in place, which include:
 limited entry;
 gear restrictions (the requirement for hand harvesting only, with restrictions
on the number of divers operating, results in negligible bycatch and minimal
disturbance to the physical environment);
 area closures;
 species specific minimum size limits based on estimated size at reproductive
maturity;
 a total allowable catch for a suite of target species; and
 a reviewable performance measurement system with management objectives
and performance measures for target species including limit reference points
and management responses.
Under an industry Memorandum of Understanding, a rotational zoning scheme
also applies to harvest of a number of target species. Rotational harvest is likely
to reduce the potential impact of the fishing on ecosystems, habitats and
biodiversity generally.
(c)
if the operation relates to the taking of live specimens that belong
to a taxon specified in the regulations – the conditions that, under
the regulations, are applicable to the welfare of the specimens are
likely to be complied with; and
The EPBC Regulations do not specify fish as a class of animal in relation to the
welfare of live specimens.
(d)
such other conditions (if any) as are specified in the regulations
have been, or are likely to be, satisfied.
No other conditions are specified in relation to commercial fisheries in the
EPBC Regulations.
18
(4) In deciding whether to declare an operation as an approved wildlife
trade operation the Minister must have regard to:
(a) the significance of the impact of the operation on an ecosystem
(for example, an impact on habitat or biodiversity); and
(b)
the effectiveness of the management arrangements for the
operation (including monitoring procedures).
The department considers that the operation of the East Coast Bêche-de-mer
Fishery during the period of the recommended declaration as an approved
wildlife trade operation will not have a significant impact on any relevant
ecosystem, given the management measures currently in place, which include:
 limited entry;
 gear restrictions (the requirement for hand harvesting only, with restrictions
on the number of divers operating, results in negligible bycatch and minimal
disturbance to the physical environment);
 area closures;
 species specific minimum size limits based on estimated size at reproductive
maturity;
 a total allowable catch for a suite of target species; and
 a reviewable performance measurement system with management objectives
and performance measures for target species including limit reference points
and management responses.
Under an industry Memorandum of Understanding, a rotational zoning scheme
also applies to harvest of a number of target species. Rotational harvest is likely
to reduce the potential impact of the fishing on ecosystems, habitats and
biodiversity generally.
The management arrangements that will be employed for the East Coast
Bêche-de-mer Fishery are likely to be effective. Management arrangements for
the fishery are included in the Queensland Fisheries Act 1994 and the Fisheries
Regulation 2008. Management arrangements include:
 limited entry;
 gear restrictions;
 area closures;
 species specific minimum size limits based on estimated size at reproductive
maturity; and
 a total allowable catch for a suite of target species.
Under an Industry Memorandum of Understanding, a rotational zoning scheme
also applies to harvest of a number of target species. While the scheme is
voluntary, Fisheries Queensland monitors compliance with the rotational zoning
scheme. Vessel monitoring systems are required on all primary vessels.
19
Fisheries Queensland reviews the performance of the fishery annually against a
series of objectives, performance measures and reference points.
(5) In deciding whether to declare an operation as an approved wildlife
trade operation the Minister must have regard to:
(a) whether legislation relating to the protection, conservation or
management of the specimens to which the operation relates is
in force in the State or Territory concerned; and
The East Coast Bêche-de-mer Fishery will be managed under the Queensland
Fisheries Act 1994 and the Queensland Fisheries Regulation 2008.
(b)
whether the legislation applies throughout the State or Territory
concerned; and
The Queensland Fisheries Act 1994 and the Fisheries Regulation 2008 apply
throughout waters managed by Queensland.
(c)
whether, in the opinion of the Minister, the legislation is
effective.
The legislation is likely to be effective.
(10) For the purposes of section 303FN, an operation is a wildlife trade
operation if, an only if, the operation is an operation for the taking of
specimens and:
(d) the operation is a commercial fishery.
Section 303FR Public consultation
(1) Before making a declaration under section 303FN, the Minister must
cause to be published on the Internet a notice:
(a) setting out the proposal to make the declaration; and
(b) setting out sufficient information to enable persons and
organisations to consider adequately the merits of the proposal;
and
(c) inviting persons and organisations to give the Minister, within the
period specified in the notice, written comments about the
proposal.
(2) A period specified in the notice must not be shorter than 20 business
days after the date on which the notice was published on the Internet.
The East Coast Bêche-de-mer Fishery is a commercial fishery.
The department’s assessment of the Queensland East Coast Bêche-de-mer
Fishery
The department considers that consultation requirements of the EPBC Act for
declaring an approved wildlife trade operation have been met. A public notice,
which set out the proposal to declare the East Coast Bêche-de-mer Fishery an
approved wildlife trade operation and included Fisheries Queensland's
submission, was released for public comment which closed on 29 April 2011
with one comment received.
A public notice, which set out the proposal to declare the East Coast
Bêche-de-mer Fishery an approved wildlife trade operation and included
Fisheries Queensland's submission, was released for public comment on
28 March 2011 which closed on 29 April 2011, a total of 21 business days.
20
(3) In making a decision about whether to make a declaration under section
303FN, the Minister must consider any comments about the proposal to
make the declaration that were given in response to the invitation in the
notice.
Part 13A (cont.)
Section 303FT Additional provisions relating to declarations
(1)
This section applies to a declaration made under section 303FN, 303FO or
303FP.
(4)
The Minister may make a declaration about a plan or operation even
though he or she considers that the plan or operation should be the subject
of the declaration only:
(a) during a particular period; or
(b) while certain circumstances exist; or
(c) while a certain condition is complied with.
In such a case, the instrument of declaration is to specify the period,
circumstances or condition.
(8)
A condition may relate to reporting or monitoring.
(9)
The Minister must, by instrument published in the Gazette, revoke a
declaration if he or she is satisfied that a condition of the declaration has
been contravened.
(11) A copy of an instrument under section 303FN, or this section is to be
made available for inspection on the Internet.
Part 16
Section 391 Minister must consider precautionary principle in making
decisions
(1) The Minister must take account of the precautionary principle in making a
decision under section 303DC and/or section 303FN, to the extent he or she
can do so consistently with the other provisions of this Act.
The public comment received on the submission is included at Attachment C of
the brief. The department’s assessment has considered the public comment
received.
The department’s assessment of the Queensland East Coast Bêche-de-mer
Fishery
A declaration for the East Coast Bêche-de-mer Fishery will be made under section
303FN.
The standard conditions applied to the declaration of a commercial fishery as an
approved wildlife trade operation include:
 operation in accordance with the management regime;
 notifying the department of changes to the management regime; and
 annual reporting in accordance with the requirements of the Australian
Government Guidelines for the Ecologically Sustainable Management of
Fisheries – 2nd Edition.
The instrument of declaration for the East Coast Bêche-de-mer Fishery specifies the
standard and any additional conditions applied.
One of the standard conditions relates to reporting.
The instrument for the East Coast Bêche-de-mer Fishery made under section 303FN
and the conditions under section 303FT will be gazetted and made available on the
department’s website.
The department’s assessment of the Queensland East Coast Bêche-de-mer
Fishery
The precautionary principle has been considered in the preparation of advice in
relation to decisions under section 303DC and section 303FN.
(2) The precautionary principle is that lack of full scientific certainty should
not be used as a reason for postponing a measure to prevent degradation of
21
the environment where there are threats of serious or irreversible
environmental damage.
22
The Department of Sustainability, Environment, Water, Population and
Communities’ final conditions and recommendations to Fisheries Queensland for
the East Coast Bêche-de-mer Fishery
The East Coast Bêche-de-mer Fishery is a multi species fishery harvesting a range of
sea cucumber species by means of hand collection, for the production of bêche-de-mer.
The material submitted by Fisheries Queensland demonstrates that the management
arrangements for the East Coast Bêche-de-mer Fishery continue to meet most of the
requirements of the Australian Government Guidelines for the Ecologically Sustainable
Management of Fisheries - 2nd edition.
Stock status and recovery
The department considers that overall the management regime for the East Coast
Bêche-de-mer Fishery aims to ensure that fishing is conducted in a manner that does not
lead to over-fishing. The department also considers that there is a high degree of
probability that black teatfish stocks will recover.
Management measures in place in the fishery include limited entry, gear restrictions and
species-specific minimum size limits based on estimated size at reproductive maturity.
A combined commercial total allowable catch applies to species other than those which
have formal total allowable catch limits (quota). Species-specific total allowable catches
have been set only for white teatfish (divided between a northern and a southern zone)
and black teatfish (set at zero since 1999 to allow recovery of the stock). The fishery's
performance measurement system includes species-specific review reference points
which allow Fisheries Queensland to assess the individual species catches of the species
which make up the “other” quota group. The review reference points were developed in
conjunction with industry and scientists with expertise in sea cucumber resource
monitoring and biology. If total annual harvest of a particular species exceeds the
species review reference point, a series of management actions, which may include
conducting a resource assessment and setting spatially defined catch limits, are initiated.
Since 2004, industry has operated within a voluntary rotational zoning scheme where
154 nominated fishing zones may be fished for up to 15 days in one of every three
years. However, the three-year rotational zoning arrangement does not apply to harvest
of burrowing blackfish, which currently makes up approximately 70% of the harvest.
Since the last Australian Government assessment of the fishery in 2007,
Fisheries Queensland has finalised and published the Performance Measurement System
- Queensland East Coast Bêche-de-mer Fishery - Version 1 - November 2008. The
performance measurement system includes objectives, performance indicators,
performance measures and management responses for the fishery. Fisheries Queensland
has also developed the Harvest Fishery Research and Development Priorities
(2008-2013), which identifies a number of high and very high priority research needs
for the East Coast Bêche-de-mer Fishery. This document was designed as a guide to
research priority issues for harvest fisheries to assist research bodies in developing
research applications and projects. However, since the completion of the research
priorities document, little or none of the identified research has commenced. In
particular, the need for resource assessments and re-assessments, also identified in the
performance measurement system, remain outstanding and there remains a lack of
fishery independent research to inform the development sustainable harvest
arrangements.
23
In 2011, Fisheries Queensland completed the report entitled Evaluating the effectiveness
of the Rotational Zoning Scheme for the Queensland East Coast Bêche-de-mer Fishery March 2011. The report concluded that the voluntary rotational zoning arrangements
implemented by industry and monitored by Fisheries Queensland reduce the risk of
localised depletion of species taken in the fishery by distributing the catch and effort
throughout the fishery. However, Fisheries Queensland has identified that a significant
proportion of the fishery's total catch is harvested from areas not covered by the
three year rotational zoning which works to limit effort for secondary species in the
fishery. Burrowing blackfish zones are managed independently of the three year
rotational zones, relying on zone specific total allowable catches. In 2009 and 2010,
burrowing blackfish was the dominant species harvested in the fishery, representing
70% by processed weight of the total harvest.
Fisheries Queensland has advised that it is currently developing a Statement of
Management Arrangements for the East Coast Bêche-de-mer Fishery. The Statement of
Management Arrangements will contain information about the operational and reporting
requirements for the fishery while also describing how the fishery will be managed. The
document will be publicly available. Fisheries Queensland intends that operation in
accordance with the Statement of Management Arrangements will become a condition
of all licences issued in the fishery. Fisheries Queensland has also indicated that the
performance measurement system for the fishery will be reviewed following the
changes to management arrangements.
Black teatfish recovery
The fishery was closed to harvest of black teatfish in 1999 through the introduction of a
total allowable catch of 0 tonnes for this species, in response to concerns about the
sustainability of the stock. The performance measurement system for the fishery
specifies the criteria that would need to be met for commercial harvest for that species
to recommence.
Ecosystem impacts
Taking into account management measures for the fishery, including:

limited entry;

gear restrictions (hand harvesting only, with restrictions on the number of divers
operating);

species-specific minimum size limits based on size at reproductive maturity;

species-specific quota for some key target species;

species-specific review reference points which trigger management actions; and

the voluntary rotational zoning scheme implemented by industry and monitored
by Fisheries Queensland,
the department considers that the management regime for the East Coast Bêche-de-mer
Fishery provides for fishing operations to be managed to minimise their impact on the
structure, productivity, function and biological diversity of the ecosystem.
24
Notwithstanding the progress made by Fisheries Queensland to address the outstanding
risks associated with this fishery, the department has identified a number of risks and
uncertainties that must be managed to ensure that impacts are minimised, including:

the inherent vulnerability of sea cucumber species in general to
over-exploitation;

the proportion of total harvest in the fishery that is not subject to rotational
zoning arrangements;

a lack of biological and stock information for key target species such as
burrowing blackfish;

a lack of biological and stock information for emerging target species, such as
curryfish;

the lack of spatially explicit catch limits related to resource abundance –
especially in relation to emerging target species; and

the voluntary nature of spatial management arrangements in the fishery.
The key challenges for this fishery will be:

ensuring that resource assessments and re-assessments for burrowing blackfish
are delivered;

obtaining the information identified as high priority research and development
needs in the Harvest Fishery Research and Development Priorities (2008-2013);

developing appropriate spatial reporting and analysis for key target species; and

developing appropriate management arrangements for emerging target species.
The department considers that, until it can be demonstrated that these issues have been
adequately addressed, declaration of the harvest operations of the East Coast
Bêche-de-mer Fishery as an approved wildlife trade operation for three years, until
17 July 2014, is appropriate. The department considers that the declaration should be
subject to the conditions listed in Table 4 below. To contain and minimise the risks in
the longer term the recommendations outlined in Table 4 have been made.
Unless a specific time frame is provided, each condition and recommendation must be
addressed within the period of the declaration.
25
Table 4: Queensland East Coast Bêche-de-mer Fishery Assessment - Summary of Issues, Conditions and Recommendations - July 2011
Issue
Condition/Recommendation
General Management
Condition 1:
Operation of the East Coast Bêche-de-mer
Fishery will be carried out in accordance with the
management regime for the fishery in force under
the Queensland Fisheries Act 1994 and the
Queensland Fisheries Regulation 2008.
Export decisions relate to the arrangements in force at the time of the decision. To ensure that these
decisions remain valid and export approval continues uninterrupted, the Department of Sustainability,
Environment, Water, Population and Communities needs to be advised of any changes that are made to the
management regime and make an assessment that the new arrangements are equivalent or better, in terms of
ecological sustainability, than those in place at the time of the original decision. This includes operational
and legislated amendments that may affect sustainability of the target species or negatively impact on
byproduct, bycatch, protected species or the ecosystem.
Annual Reporting
It is important that reports be produced and presented to the department annually in order for the
performance of the fishery and progress in implementing the recommendations in this report and other
managerial commitments to be monitored and assessed throughout the life of the declaration. Annual
reports should include: a description of the fishery; management arrangements in place; research and
monitoring outcomes; recent catch data for all sectors of the fishery; status of target stock; interactions with
protected species; impacts of the fishery on the ecosystem in which it operates; and information outlining
progress in implementing recommendations resulting from the previous assessment of the fishery (for a
complete description of annual reporting requirements see Appendix B of the Guidelines for the
Ecologically Sustainable Management of Fisheries - 2nd Edition available from the department’s website at:
http://www.environment.gov.au/coasts/fisheries/publications/guidelines.html.
Condition 2:
Fisheries Queensland to inform the Department of
Sustainability, Environment, Water, Population
and Communities of any intended amendments to
East Coast Bêche-de-mer Fishery management
arrangements that may affect the assessment of the
fishery against the criteria on which Environment
Protection and Biodiversity Conservation
Act 1999 decisions are based.
Condition 3:
Fisheries Queensland to produce and present
reports to the Department of Sustainability,
Environment, Water, Population and Communities
annually as per Appendix B to the Guidelines for
the Ecologically Sustainable Management of
Fisheries - 2nd Edition.
26
Sustainable harvest of sea cucumber species - resource assessment
The implementation of the Performance Measurement System - Queensland East Coast Bêche-de-mer
Fishery - Version 1 November 2008 (PMS) represents a major step in the development of long term
sustainable management arrangements for the East Coast Bêche-de-mer Fishery.
The PMS includes a management response for resource assessments to be conducted when total catch
per quota year reported through compulsory daily fisher logbooks exceeds individual species review
reference points. Review reference points have been specified for 19 species of sea cucumber.
Under the current PMS, catch above the reference point may trigger a range of management responses
including a requirement for industry to conduct a resource assessment for that species within 12 months, or
to immediately reduce harvesting of that species to below the reference point. The resource assessments are
expected to provide sustainable yield estimates with the intention of incorporating these in to the
development of a commercial total allowable catch limit for that species.
The Department of Sustainability, Environment, Water, Population and Communities is concerned that the
effectiveness of the management responses contained in the performance measurement system may be
compromised if triggered resource assessments are not completed and provided to Fisheries Queensland in
a timely manner. Implementation of timely management responses to the exceeding of review reference
points is key factor in ensuring that harvest of target species is maintained at sustainable levels.
Reporting against the performance measurement system in the 2009 and 2010 annual status reports
indicated that the review reference point for burrowing blackfish, then the dominant species harvested in the
fishery, had been exceeded. As a result of a review reference point being triggered, a resurvey of
Gould Reef for burrowing blackfish was conducted by industry. In April 2011, at the time of preparing the
submission for reassessment of the fishery, Fisheries Queensland had received only a draft report of the
survey, with the final report expected in 2012.
Condition 4:
Fisheries Queensland to implement measures to
ensure that, where a resource assessment is
triggered for a species, catch of that species will
not exceed the reference point until an agreed
sustainable yield estimate, based on the results of
the resource assessment, is implemented.
Recommendation 1:
As part of ongoing review of the performance
measurement system for the East Coast
Bêche-de-mer Fishery, Fisheries Queensland to
further refine the management responses to annual
catch exceeding review reference points, such that
if the need for a resource assessment is indicated,
the continuation of fishing for the triggered
species is dependent on:
-
the undertaking of resource assessments
within defined timeframes; and
-
the implementation of appropriate catch limits
related to estimated biomass; and
-
the triennial review of catch limits (based on
resource assessments) to ensure that the limits
remain appropriate; and
Sustainable harvest of burrowing blackfish was a focus of the 2007 Australian Government assessment of
the fishery. Burrowing blackfish is the dominant species harvested in the fishery, having represented 70%
by processed weight of the total harvest each season since 2006/07. The need for monitoring surveys for
catch limited sea cucumber populations such as burrowing blackfish was identified as a very high priority in
the Harvest Fishery Research and Development Priorities (2008-2013).
the implementation of precautionary catch
limits outside of defined areas where catch
limits are based on resource assessment.
To ensure that resource assessments and re-surveys are conducted within a timely matter when triggered by
the PMS, the department recommends that Fisheries Queensland put in place arrangements which prevent
unrestricted fishing for species for which a review reference point is exceeded, in the event that completion
of a resource assessment or re-survey is delayed beyond the timeframe specified in the PMS.
27
Sustainable harvest of sea cucumber species - fishery management arrangements
Fisheries Queensland has advised that it is currently developing a Statement of Management Arrangements
for the East Coast Bêche-de-mer Fishery which will contain information about the operational and reporting
requirements for the fishery. It is intended that operation in accordance with the Statement of Management
Arrangements will become a condition of all licences issued in the fishery.
Recommendation 2:
Fisheries Queensland to develop a statement of
management arrangements for the East Coast
Bêche-de-mer Fishery and condition licences to
operate in accordance with that statement.
The department considers that this formalisation of management arrangements, in conjunction with ongoing
implementation and review of the performance measurement system for the fishery, will help to ensure that
the take of sea cucumber in the East Coast Bêche-de-mer Fishery is maintained at sustainable levels.
Sustainable harvest of sea cucumber species - biological and stock characteristics
Recommendation 3:
The East Coast Bêche-de-mer Fishery is a multispecies fishery with individual species of sea cucumbers
having different biological characteristics. A lack of knowledge of the life history of key target species in
the fishery was identified as an issue in the 2004 and 2007 assessments of the fishery. A recommendation of
the 2007 assessment was for Fisheries Queensland to identify as a priority and support research into:
Fisheries Queensland, in conjunction with relevant
stakeholders, to continue to identify and pursue
opportunities to improve knowledge of the
biological characteristics of species harvested in
the East Coast Bêche-de-mer Fishery, with
reference to the research priorities for the fishery
identified in the Harvest Fishery Research &
Development Priorities (2008-2013).


the basic biology and recruitment of key target species, including burrowing blackfish, and
the ecological impact of sea cucumber harvest in the East Coast Bêche-de-mer Fishery.
Fisheries Queensland’s Harvest Fishery Research & Development Priorities (2008-2013) identified a
number of high to very high priority research needs aimed at improving the sustainable management of
harvest fisheries including the East Coast Bêche-de mer Fishery.
A very high priority was assigned to the need to undertake surveys of catch limited populations such as
burrowing blackfish (repeated measures surveys).
High priorities included:




resolving taxonomy of sea cucumber species by developing species identification guides;
determining life history parameters of key target species, particularly burrowing blackfish;
refining conversion factors including landed weight to live length, live weight and gutted weight; and
developing adaptive management strategies including:
- logbook analysis for spatially explicit catch & effort information (monitor localised exploitation
rates);
- stock/resource assessments for formulation of catch limits (species by area);
- improved, cost-effective population sampling methods; and
- determining finer spatial scale catch / effort trigger points.
Public comment on Fisheries Queensland’s 2011 submission highlighted the importance of knowledge of
biological and stock characteristics to inform species-specific management. Despite its ranking as a very
high priority, the department understands that re-surveys for burrowing blackfish have not yet been
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completed and reported in a satisfactory manner (see Condition 4 and Recommendation 1).
Given the number of high priority research areas identified, the department considers that action to progress
these is required and recommends the development of a research plan for the fishery to further prioritise and
pursue the research needs identified in the Harvest Fishery Research & Development Priorities
(2008-2013).
Sustainable harvest of sea cucumber species - fine-scale spatial management
An objective of the PMS for the East Coast Bêche-de-mer Fishery is to "minimise the risks of concentration
of fishing effort leading to unsustainable harvest at a local scale and to serial depletion in the fishery".
The 2007 Australian Government assessment of the fishery recommended that Fisheries Queensland
evaluate the rotational zoning scheme developed by industry and report on the species composition of each
zone. The review undertaken by Fisheries Queensland in 2010/11 reports that logbook data recorded
according to Fisheries Queensland's grid/site reference system cannot be matched exactly to the industry
zones. (In its review, Fisheries Queensland analysed catch and effort by site reference.)
Fisheries Queensland has proposed a number of potential solutions including requiring fishers to report the
rotational zone in which catch is taken, or simplification of the rotational zoning scheme to be more
consistent with Fisheries Queensland existing square grid/site spatial reporting system. Public comment on
Fisheries Queensland's 2011 submission for reassessment, which included the results of the review of the
rotational zoning scheme, also recommended a simplified zoning system.
Recommendation 4:
Fisheries Queensland to:
-
further develop appropriate spatial reporting
and analysis for key target species and
emerging target species; and
-
demonstrate that the spatial management
arrangements are appropriately managing
sustainability risks related to key target
species and emerging target species.
The department notes the effectiveness of the rotational zoning system since its introduction in distributing
effort across the fishery. The department considers that, as identified in Fisheries Queensland's review, the
ability to use spatial catch and effort data to inform management arrangements that ensure that harvest of
key target species and emerging target species is sustainable at a local scale can be improved. The
department encourages Fisheries Queensland to further develop appropriate spatial reporting and analysis
for key target species and emerging target species.
Collaborative approach to management of Australian sea cucumber harvest
The sea cucumber fisheries of northern Australia generally harvest many of the same species and face many
of the same issues. With few licence holders, licence holders common to many of the fisheries and vertical
integration of harvesting and processing, there is both opportunity for collaborative and complementary
implementation of robust management arrangements and the threat of rapid, relatively uncontrolled
transfers of effort from species to species and between fisheries.
Recommendation 5:
Fisheries Queensland to continue and encourage
further co-operation with relevant jurisdictions to
pursue increased knowledge and complementary
management of sea cucumber resources across
fisheries and across jurisdictions.
Submissions from a number of fishery management agencies for initial assessment of sea cucumber
fisheries under the Environment Protection and Biodiversity Conservation Act 1999 indicated that a high
level of collaboration and coordination of sea cucumber research occurred through North Australian Fishery
Management workshops during the late 1990's.
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The department understands that information exchange between Fisheries Queensland and other fishery
management agencies currently occurs through:
 related research and development activities in the East Coast Bêche-de-mer Fishery and adjacent
fisheries managed by the Australian Fisheries Management Authority - the Torres Strait
Bêche-de-mer Fishery (managed by the Australian Fisheries Management Authority on behalf of
the Torres Strait Protected Zone Joint Authority) and the Coral Sea Fishery, which includes a
bêche-de-mer sector;
 Queensland's role as a part of the Torres Strait Protected Zone Joint Authority; and
 Fisheries Queensland undertaking the licensing role for Torres Strait fisheries for the Australian
Fisheries Management Authority.
It is less clear to what extent liaison with the Northern Territory and Western Australia currently occurs.
International trade in sea cucumbers was initially discussed at the 12th Conference of the Parties to the
Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) in 2002. A
technical workshop was held in 2004 to consider and review biological and trade information to assist
establishing conservation priorities for sea cucumbers. Subsequently, attention has focussed on the
development of recommendations for Parties to improve the conservation of sea cucumber stocks. At the
14th Conference of the Parties in 2007, the Parties adopted a decision to bring the need to increase efforts to
address challenges in the sustainable management of sea cucumber fisheries to the specific attention of the
Food and Agriculture Organisation of the United Nations (FAO).
In November 2007 the FAO held a workshop on Sustainable Use and Management of Sea Cucumber
Fisheries (Purcell 2010). A decision of the 15th Conference of the Parties in 2010 was for the Animals
Committee of CITES to evaluate the outcomes of the workshop and recommend appropriate follow-up
actions at the 16th meetings of the Conference of the Parties (to be held in March 2013).
In view of the international interest in ensuring that sea cucumber resources are managed sustainably, the
department considers that close co-operation between all jurisdictions responsible for managing Australian
and shared sea cucumber resources is necessary.
The department recommends that Fisheries Queensland continues to maintain the current high level of
collaboration and to the extent possible encourages enhanced co-operation with other relevant jurisdictions
with the aim of increasing the knowledge and complementary management of Australia's sea cucumber
resources.
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References
Australian Fisheries Management Authority (2010) Strategic Assessment Report – Coral
Sea Fishery - September 2010
Purcell SW (2010) Managing sea cucumber fisheries with an ecosystem approach. FAO
Fisheries and Aquaculture Technical Paper No. 520, FAO, Rome, Italy.
Acronyms
CITES
Convention on International Trade in Endangered Species of Wild Fauna
and Flora
DEWHA
Department of the Environment, Water, Heritage and the Arts
DPI&F
(Queensland) Department of Primary Industries and Fisheries
ECBDMF
East Coast Bêche-de-mer Fishery
EPBC Act
Environment Protection and Biodiversity Conservation Act 1999
EPBC Regulations
Environment Protection and Biodiversity Conservation Regulations 2000
PMS
Performance Measurement System
RZS
Rotational Zoning Scheme
SCUBA
Self Contained Underwater Breathing Apparatus
t
tonnes
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