OF ORNAMENTAL FISH A STRATEGIC APPROACH TO CONSULTATION DRAFT IN AUSTRALIA THE MANAGEMENT

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA

CONSULTATION DRAFT A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH

IN AUSTRALIA

CONSULTATION DRAFT

Marine and Coastal Committee Natural Resource Management Standing Committee 2005 Disclaimer

The Commonwealth of Australia acting through the Bureau of Rural Sciences has exercised due care and skill in the preparation and compilation of the information and data set out in this publication. Notwithstanding, the Bureau of Rural Sciences its employees and advisers disclaim all liability, including liability for negligence, for any loss, damage, injury, expense or cost incurred by any person as a result of accessing, using or relying upon any of the information or data set out in this publication to the maximum extent permitted by law.

© Commonwealth of Australia 2005 ISBN 0 642 47595 4 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. Requests and inquiries concerning reproduction and rights should be addressed to the Commonwealth Copyright Administration, Intellectual Property Branch, Department of Communications, Information Technology and the Arts, GPO Box 2154, Canberra ACT 2601 or at www.dcita.gov.au/cca CONTENTS

Public consultation procedure ...... iv Grey list (species requiring further information/ consideration and risk assessment) ...... 26 Executive summary ...... 1 Appendix 2 Noxious aquatic plants ...... 29 1 Introduction ...... 2 Water plants as weeds of national significance . . . . . 29 Need for a national approach ...... 4 Water plants with identified establishment Terms of reference ...... 5 potential ...... 30

2 Existing controls ...... 6 Appendix 3 Current regulation of Importation ...... 6 ornamental fish ...... 31 Applications to amend the list of Appendix 4 PIAA accreditation scheme ...... 34 permitted imports ...... 6 Roles and responsibilities of AQIS Appendix 5 Ornamental Fish Policy and Biosecurity Australia ...... 6 Working Group membership ...... 36 State/Territory regulation ...... 8 Risk assessment framework ...... 10 Appendix 6 Regional contacts ...... 37

3 Noxious species ...... 11 Abbreviations and acronyms ...... 38 Proposed action ...... 12 Live rock ...... 12 Potential management options ...... 13 Tables Aquatic plants ...... 14 Table 1 Summary of current national, state and 4 Proposed regulatory framework ...... 15 territory legislation used for the regulation and control of exotic fish ...... 7 Regulation of pet shops ...... 16 Decision support trees for regulation of the Table 2 Indicative information about live rock ornamental fish trade and hobby sectors ...... 16 harvesting in Australia ...... 11

5 Management of ornamental pests and Table 3 Options available for management noxious species in Australia ...... 19 of undesirable species ...... 18

6 Communication plan ...... 21

7 Recommendations and next steps ...... 22 Figures Next steps ...... 22 Figure 1 Flow chart of DEH live import process . . . . 5 References ...... 23 Figure 2 Classification of activities on the Appendix 1 Proposed noxious list and grey basis of the sale/trade of fish ...... 15 list species ...... 24 Figure 3 Ornamental fish regulation Proposed noxious fish ...... 24 decision tree ...... 16 Noxious in all jurisdictions ...... 24 Noxious in particular climatic or other conditions ...... 26

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA iii PUBLIC CONSULTATION PROCEDURE

The general public, ornamental fish traders, breeders Copies of this document are available from the and hobbyists, and other stakeholders are invited to regional contact persons listed in Appendix 6, or provide comment on the draft strategy to inform final by contacting Richard Tilzey (02 6272 4044 or content of the strategy. The consultation period ends [email protected]). Electronic copies can be on 28 February 2006. downloaded from http://www.brs.gov.au/ornamental. Please note that comments should centre on the major The regional contact persons can also provide advice objectives and intent of the proposed strategy, rather on strategic issues relevant to their state or territory. than debating the status of individual fish species and Comments should be mailed to: their inclusion or exclusion as noxious species. As Richard Tilzey stated in the draft strategy, the ‘grey list’ of species is Ornamental Fish Working Group by no means exhaustive and will be subject to Bureau of Rural Sciences thorough review (risk assessment) by a technical GPO Box 858 working group, with major stakeholders being Canberra, ACT 2601 involved in this process. The inclusion of a species on the grey list does not necessarily mean that it will or emailed to: eventually be declared noxious. [email protected]

iv A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA EXECUTIVE SUMMARY

The ornamental aquarium fish trade in Australia is but they are no longer on the list and are unlikely to estimated to be worth approximately $350 million have been assessed for their potential risk to the annually. This figure includes commercial fish- environment. There is no consistency between breeding facilities, wholesale traders, retail outlets mechanisms or controls across regulatory agencies to and the hobby industry. deal with the serious issue of noxious aquatic pests, The trade is complex, with each jurisdiction having with the exception of a few species (eg European different regulatory frameworks and management carp). Past efforts to regulate the ornamental fish regimes. Translocation of fish across borders occurs industry have failed, primarily as a result of heavy- with impunity and no-one, apart from some major handed approaches to regulation, and a lack of wholesale businesses and hobby groups, really knows consultation and failure to engage effectively with which species are being traded in Australia, or the industry stakeholders. The Pet Industry Association of numbers of prohibited or noxious fish being bred and Australia (PIAA) has supported this review of the traded in the industry. ornamental fish trade. The PIAA, in association with state and territory governments, has committed to the Ornamental fish present a significant risk to implementation of this report’s recommendations, to freshwater systems in Australia and have the potential ensure that the industry has an economically sound to trigger or contribute to a future major aquatic and environmentally sustainable future. animal pest or disease incursion. This document does not consider disease risks associated with ornamental This report contains seven recommendations for the fish, as those risks are subject to separate review by future management and regulation of the ornamental Biosecurity Australia and the National Aquatic fish trade in Australia (see page 20). The Ornamental Animal Health Committee. Fish Policy Working Group, which researched the industry and developed the recommendations, A number of populations of exotic or non-endemic recognises that unless there is a consistent, national ornamental fish species are established in Australia, approach to regulate and manage the industry, the ad and these ‘pests’ are seriously impacting on hoc approach taken to date will continue, with the biodiversity in our freshwater systems. Some marine likely outcome of further exotic invasions and disease plants, such as Caulerpa taxifolia (which was traded threats to Australian fisheries and aquaculture in the aquarium industry until recently), can have industries. devastating effects on marine systems if released, and future escapes and aquatic invasions need to be avoided. The recommendations of the report address the need for a nationally recognised noxious species list and Many fish species in the trade are not on the current new management frameworks for the ornamental national permitted species lists established under Part sector as a whole. The report also recognises the 13A of the Environment Protection and Biodiversity importance of improved communication with Conservation Act 1999 or covered by quarantine all stakeholders through a comprehensive regulations. It may be that such species have been communication plan. permitted under previous statutory arrangements,

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 1 CHAPTER 1 INTRODUCTION

Worldwide, the keeping of ornamental fish in aquaria There is an active but difficult to quantify unregulated is a popular hobby; aquaria are a regular sight in trade in fish within hobby associations and between many homes and in workplaces and other public enthusiasts. Given data for the United Kingdom which spaces. In the United Kingdom, for example, the estimates that about 7% of hobbyists keep more than population of pet fish is estimated to be 140 million, 100 fish (over 40% of the total number of pet fish or about two and a half times the human population. owned) and indications that this trend is global, it is In Australia, the total pet fish population is estimated reasonable to assume that there is a significant to be around 12 million (although industry suggests unregulated and (officially) unrecorded trade in fish that this is a conservative estimate). between hobbyists in Australia. This view is certainly In Australia, it is also estimated that between 12% supported by the anecdotal information available in and 14% of the population participate in the aquarist club bulletins, magazines and aquarium websites. hobby at some level (Patrick 1998). The Australian With many millions of fish being transported around aquarium industry is relatively small, with total the globe, many well beyond their natural range, turnover at the retail level estimated to be about $65 importation of aquarium fish is seen by many million. Approximately 1500 retailers (aquariums and countries as a major potential source of invasive pet shops) across Australia deal in aquarium fish. species (McDowall 2004). Recent studies (Lintermans According to the Pet Industry Association of Australia 2004) suggest that approximately 34 exotic freshwater (PIAA) approximately 60% of aquarium fish are species have established populations in Australia; the supplied domestically by local breeders; the other pathway for 22 of these species is thought to have 40% are imported. Imports of ornamental fish in been the ornamental fish industry. Given the well- 2002–03 were estimated to be worth about $3.87 demonstrated difficulties in eradicating species once million (ABARE 2004). they are established, the sound investment of resources requires a focus on effective management and control both of new species coming into Australia and of those already known to be circulating in the trade and hobby associations within the country.

2 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA A number of key challenges have been identified in – improve aquarium dealers’ access to information progressing a national approach to the management of about differing regulations across jurisdictions, ornamental fish. The points below are far from all- including notification of changes to prohibited inclusive, but summarise some of the key issues that species lists. have been raised in recent years: – disseminate information to those dealers and • Within jurisdictions, a lack of personnel adequately hobbyists who are outside existing formal trained to identify aquarium species (fish and networks (eg professional associations). aquatic plants) is leading to ineffective monitoring • There is a strong informal system of trade among of aquarium retailers and hobbyists. hobbyists, which is currently unrecorded and • Listed plants and aquatic organisms (both unregulated. While formal regulation of this sector prohibited and permitted) need to be revised to may not be necessary, the capacity to develop clarify the status and actions required for many networks for the collection and dissemination of species already in the country. This information information (particularly about pests and animal also needs to be published and made broadly health issues) is important for future strategic available to regulators and stakeholders. management. • A system is needed that recognises aquarium • A concise guide to the variations in regulations and industry and large-scale hobby operators who are permitted species between jurisdictions is needed to not covered by existing state and territory fisheries reduce confusion and abuse of the system. regulations. This is not to create unnecessary Interstate trade and other cross-border movement regulatory burdens, but rather to: of aquarium specimens are currently inadequately – facilitate effective and timely dissemination of controlled. information to all sectors within the aquarium industry — information from government about matters affecting the industry has often been slow to reach it under current arrangements

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 3 Inconsistencies between jurisdictions in the regulation Key issues arising from this meeting included of aquarium fish species have meant that many species concerns about: that have managed to bypass import control • the large number of ornamental species in the arrangements (ie species smuggled, or legally imported country that are not on the permitted list under under previous legislation) can be, and frequently are, the EPBC Act openly traded commercially and among hobbyists. Currently, through one avenue or another, any exotic • the disease and pest status of animals that may fish species sought is effectively available in Australia. have entered the country illegally A recent review (McNee 2002) suggested that over • inconsistencies between jurisdictions in legislation 1100 exotic ornamental fish species are in Australia. and policy relating to permitted/noxious species and As the ‘permitted import’ list under Part 13A of the effective controls Environment Protection and Biodiversity • the effectiveness of current border controls to Conservation Act 1999 (EPBC Act) currently lists only prevent illegal imports of species and consequent 481 species or genera that have been assessed as potential animal health risks. permitted imports, it is clear many species were either here before the Act was passed or have entered the These issues were summarised in a report submitted to country illegally. Uncertainty about these species and the third meeting of the Australian Fisheries Managers how best to regulate them was one of the driving Forum (AFMF). factors in the establishment of a national review of the Having reviewed the paper at its fourth meeting, on ornamental fish trade. 14 July 2003, the AFMF agreed to pursue the development of a national strategic approach on ornamental/exotic fish to address these matters. The Need for a national approach meeting also agreed that it should form a national policy working group to further this aim. Subsequently, On 13 September 2002, Australian Government and the Marine and Coastal Committee of the Natural state/territory fisheries agency representatives met Resource Management Standing Committee endorsed aquarium industry representatives and officers from this approach at its seventh meeting on 16 July 2003. Environment Australia (now the Department of the The Ornamental Fish Policy Working Group Environment and Heritage, DEH) and Biosecurity (OFPWG) consists of representatives from state and Australia (BA) in Coffs Harbour, New South Wales to territory fisheries agencies, all Australian Government get a better overall picture of the aquarium industry agencies with responsibility for ornamental fish and to find a practical way to deal with the issues of importation and animal health, and representatives pests and diseases within the aquarium fish trade. of the industry and hobby sectors. The full membership of the OFPWG is listed in Appendix 5.

4 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA Terms of reference decision to focus this strategic plan primarily on freshwater fish species used in aquaria. Comments on The key objectives for the development of a nationally aquatic plants and ‘live rock’ were included because agreed approach on aquarium fish addressed in this they have been identified as significant potential pest plan are: issues within the aquarium industry, but they have not 1. the development of a strategic plan for management been reviewed in any detail. A full review of aquatic for ornamental fish1 in Australia invertebrates, such as those occurring on or as live rock, would potentially be as large a task as for fish, 2. the development of a national list of high-risk but there is little or no background information on noxious species such species. 3. the development of a national exempt list (low risk) Marine species currently make up a small proportion of species permitted in the ornamental fish trade2 of the trade (~5%). Most of the current permitted 4. a process for assessing the risks3 associated with import listings for marine species under the EPBC Act any species currently in Australia that may not have are at the family or genus level, which means that any previously been assessed clarification of the risk status of specific species in the country would be a significant task. 5. a process for dealing with species already in the country deemed to be undesirable, including but The OFPWG has been cooperating with the National not limited to recall/removal/licensing, monitoring, Introduced Marine Pest Coordinating Group, which and surveillance has agreed to consider the outcomes of this process on ornamental fish as it applies to its work on the 6. consultation with stakeholder groups on the development of a national approach to introduced implementation of proposed changes. marine pests. Notwithstanding that fisheries legislation in most The National Aquatic Animal Health Committee is jurisdictions includes aquatic invertebrates within the currently considering potential disease transmission definition of ‘fish’, the OFPWG made a conscious risks within the aquarium trade.

1 ‘Ornamental fish’ are defined here to include freshwater and marine invertebrates and vertebrates and ‘living rock’, but not plant species. Note that this report focuses primarily on freshwater fish. 2 This refers to low-risk species, within Australia, that may not be on the current permitted import list. 3 Risks include potential risk to biodiversity and the potential for introduction of disease and parasites. Risks to biodiversity also include the introduction of native species outside their natural range (non-endemics).

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 5 CHAPTER 2 EXISTING CONTROLS

Currently, management and regulation of the ornamental Applications to amend the list fish or aquarium trade occurs at two main levels: of permitted imports • The importation of fish into Australia is controlled at the Australian Government level by the If a species intended for live import does not currently Department of the Environment and Heritage appear on the list of specimens approved for live (DEH) and by the Department of Agriculture, import, a person may apply to amend the list. A new Fisheries and Forestry (DAFF) through the species can be added to the list only after the potential Australian Quarantine and Inspection impacts of the species on the environment have been Service (AQIS). fully assessed to the satisfaction of the Minister for the Environment and Heritage. • Domestic breeding, keeping and movement are controlled through state and territory legislation. Details of the procedures for applying to amend the list of specimens suitable for live import are available on the DEH website.5 Importation Amending the list may take 6–12 months, depending on the complexity of the case. Both the EPBC Act and the Quarantine Act 1908 regulate the import of live animals and plants into The flow chart in Figure 1 is a simplified diagram of Australia. These Acts are administered by the DEH the steps involved in submitting an amendment for and AQIS, respectively. It is important to note that consideration. However, the process is currently under approval from both agencies may be required when review, so the DEH website should be consulted for importing live specimens. the most up-to-date information. Section 303(EB) of the EPBC Act establishes a list of specimens that are approved for live import. If a Roles and responsibilities of AQIS species is not on the list, it cannot be legally imported into Australia. The list of approved specimens is and Biosecurity Australia available on the DEH website.4 All fish import permits are issued in Canberra by the The list comprises two parts and covers both Live Animal Import Section of AQIS. The section is unregulated and regulated imports: responsible for assessing and issuing all live • Part 1 is a list of live specimens that do not require ornamental fish permits, providing import protocol an import permit under the EPBC Act. It may not advice to AQIS regional officers and importers, and include any specimen listed on the Convention on ensuring that all national documented information, the International Trade in Endangered Species of including work instructions and training packages, is Wild Fauna and Flora (CITES). updated as required. • Part 2 is a list of live specimens that require an AQIS quarantine officers in each region implement the import permit from DEH under the EPBC Act. operational aspects. Their duties involve approval and Imports of specimens from this part of the list may registration of quarantine approved premises (QAPs), also be subject to certain conditions or restrictions. inspection of documentation and fish at point of entry,

4 http://www.deh.gov.au/biodiversity/trade-use/lists/import/index.html 5 http://www.deh.gov.au/biodiversity/trade-use/lists/import/amend/index.html

6 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA FIGURE 1 Flow chart of DEH live import process

AREA OF RESPONSIBILITY

APPLICANT DEH/MINISTER

Step 1 Step 2

Applicant submits an application DEH publishes draft terms of form and draft terms of reference reference on DEH website and to DEH. notifies stakeholders.

Step 3

Applicant addresses comment received and final terms of reference are agreed by minister.

Step 4 Step 5

Applicant prepares draft report DEH publishes draft report on DEH addressing agreed terms of website and notifies stakeholders reference. and appropriate state and territory ministers. DEH also provides independent input.

Step 6 Step 7

Applicant addresses stakeholder When the report is finalised, comments. minister makes a decision on amending the live import list and notifies applicant.

If the minister approves the Step 8 amendment, Applicant seeks an import permit from DEH to If the minister approves the import species. amendment, DEH tables instrument before both Houses of Parliament for 15 sitting days.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 7 final inspection of tank records and fish at the QAP, The retail sector, however, does not fall specifically and release of fish from quarantine. under fisheries regulation in most jurisdictions, and AQIS verifies that the health certificates match the retailers would only be covered by industry codes of import permit conditions and have been prepared by practice if they are members of the PIAA. Membership the appropriate certifying authority. The fish are of the PIAA is voluntary. visually inspected to confirm that they are species The states and territories generally rely on one or both on the permitted import lists under the EPBC Act and of two mechanisms to regulate the aquarium fish quarantine regulations. trade: a prohibited species list and a permitted species The fish must be contained in bags of single species list. Under the former approach, authorities target fish and must be clearly visible to the inspector. Fish that species that are recognised as pests (in the broadest appear to be healthy (active, with no obvious signs of sense) and include them on a prohibited (or noxious) disease) are directed to a QAP to undergo post-arrival species list, usually making the possession of such fish quarantine. Shipments or consignments of fish that are illegal. obviously diseased are rejected and either re-exported Prohibited species lists are generally relatively short or destroyed at the importer’s expense. Full details of and easy to enforce; however, they do not provide a quarantine requirements for particular species can be mechanism to prevent trade in species whose pest risk found in ICON, the AQIS import conditions database, status is unknown and which therefore do not appear which is available on the AQIS website.6 on the list. Under this arrangement, fish that are not Biosecurity Australia (BA) is responsible for on the EPBC Act permitted import list and are not on developing and reviewing biosecurity policies and, on a state or territory prohibited list can be owned and traded easily once they are in the country, as their request, provides technical advice to AQIS about the 7 interpretation of those polices. BA is also responsible legal status is not specified in any legislation. Most of for assessing the competence of overseas authorities the fish that are smuggled into Australia belong to this and makes recommendations to AQIS about the group, along with species that may have been recognition of those authorities. imported into the country before the advent of existing legislation. An application for the live import of a genetically modified fish (which is a genetically modified Inconsistency between jurisdictions also compromises organism, or GMO) will be referred to the Office of the efforts of individual jurisdictions to manage risks the Gene Technology Regulator (OGTR). The OGTR through restricting trade in potentially noxious undertakes a risk assessment process (based on the species. In many cases, a fish that is prohibited in one effect of the genetic modification — not the organism jurisdiction is freely available in neighbouring per se — on human health and the environment) and jurisdictions and may be moved across borders issues a licence if risk is minimal. The import relatively freely by the public. consignment will still require an AQIS import permit A further difficulty in controlling smuggling at borders as well. If the OGTR refuses import of a GMO, the and enforcing existing prohibitions is the difficulty in DEH and AQIS will defer to that decision. If the identifying species permitted for import among the GMO is approved for import, it must still undergo wide diversity of the world’s freshwater fish species. AQIS and DEH assessment before import or addition The identification of exotic ornamental fish species on to permitted import lists. sight, particularly at all life stages, is a relatively specialised skill not always readily available in regulatory agencies. The permitted import system State/Territory regulation relies heavily on accurate records being provided with imported stock. However, it is suspected that All states and territories have some controls in place individuals seeking to bypass regulations may simply to manage exotic fish in the aquarium trade, usually mix cryptic juvenile forms of prohibited species within the umbrella of fisheries regulation through together with legitimate species. fisheries agencies. However, the controls are far from Table 1 summarises state, territory and Australian comprehensive and are not necessarily tailored to the government regulations relating to the declaration needs or concerns of the sector. In most jurisdictions, of noxious species and the capacity to recall or seize larger commercial breeders of fish are usually required fish species. to operate under conditions on an aquaculture licence.

6 http://www.aqis.gov.au/icon32/asp/homecontent.asp 7 Under the EPBC Act, it is an offence to be in possession of an individual specimen that was not legally imported.

8 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA TABLE 1 Summary of current national, state and territory legislation used for the regulation and control of exotic fish

JURISDICTION LEGISLATION RESPONSIBLE CAPACITY CONTROL/ AGENCY TO DECLARE SEIZURE OF NOXIOUS ANIMALS SPECIES

Australian Nature Conservation Act 1980 Environment ACT Capital Territory Fisheries Act 2000 Pest Plants and Animals Act 2005

New South Wales Stock Diseases Act 1923 Department of Primary Fisheries Management Act 1994a Industries

Northern Territory Fisheries Act 1988 Industry and Fisheries and Regulations

Queensland Fisheries Act 1994 QDPI&F Fisheries Regulations 1995

South Australia Livestock Act 1997 PIRSA Fisheries Act 1982 declared under regulation exotic fish

Tasmania Living Marine Resources Act 1995 DPWIE Inland Fisheries Act 1995 IFS controlled spp

Victoria Livestock Disease Control Act 1994 VDPI Fisheries Act 1995

Western Australia Exotic Diseases of Animals Act 1993 Department of Agriculture Fish Resources Management Act 1994 Department of Fisheries

Commonwealth Fisheries Management Act 1991 AFMA Quarantine Act 1908 AQIS Environment Protection and DEH species that Biodiversity Conservation threaten Act 1999 biodiversity

a The New South Wales noxious fish list has three categories, ranging from a ban on possession to permission to possess and sell, but with offences relating to release to the environment.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 9 Risk assessment framework model for the establishment of freshwater and estuarine fish (Bomford and Glover 2004). The review As indicated above, a major concern is the number of of the risk assessment model for terrestrial vertebrates species already in Australia that have not been found that the established framework was an effective assessed for their pest or disease potential. The policy tool for measuring risk of establishment (as tested arm of AQIS (now Biosecurity Australia) conducted against species known to have established, versus an import risk analysis for ornamental fish (AQIS those that have been released but failed to establish). 1999). However, this only covered species on the The key factors identified for determining permitted import list at the time and therefore did not establishment risk in exotic fish are: consider other species that may already have been in • number of release events the country, and being bred and traded. • climate match The DEH’s statutory process for assessing the environmental risks associated with live species • history of establishing feral populations elsewhere proposed for import into Australia can be time • size of overseas geographical range consuming. Moreover, many of the unassessed species • taxonomic group. may currently be bred successfully here, so there is little need to import fresh stock. While many other factors are thought to affect the probability of establishment, the advantage of using The key to assessing the risks of a given species’ the factors listed above is that information on most is establishment in the environment is the identification readily available in easily accessible sources (eg of those factors that determine the probability of its Fishbase). This allows relatively quick and effective successful establishment. Bomford (2003) developed a screening of large numbers of species. model for assessing the risks, in Australia, from the import and keeping of exotic terrestrial vertebrates. DEH representatives on the OFPWG have indicated The model was developed following a review of past that they plan to adopt this risk assessment model into introductions to determine the factors most likely to their suite of tools for conducting assessments of influence successful establishment of a species in the potential risks of importing exotic live freshwater fish wild. Unfortunately, this report did not consider any species. The OFPWG also recommended that the fish species among the vertebrate pests reviewed. model could be used by a technical review group established to review ‘grey listed’ species. The DEH has recently concluded a consultancy with the author of this model to develop a risk assessment

10 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA CHAPTER 3 NOXIOUS SPECIES

Of the 34 alien fish species that have established feral species is determined. These include aggressive populations in Australian waters, 22 are thought to behaviour; piscivorous diet; high fecundity and/or have come into the country via the ornamental fish frequent spawning and long life span (ie effective trade (Lintermans 2004). It is commonly accepted in reproductive potential); potentially large size; broad invasive species management theory that eradication habitat tolerances; and similarity to native species. of species once they are established is difficult, if not Meeting one of these criteria alone was not sufficient impossible, and that the most (cost) effective to qualify a species as noxious; those species proposed management is achieved through the prevention and for addition to a national list met many, if not all, of management of introduction and spread. the criteria. As noted above, changes to regulations relating to The compiled lists (see Appendix 1) are the outcome permitted imports and permitted and noxious species of deliberations within the OFPWG and feedback lists across Australia have created significant from consultations held with key scientific and uncertainty within government and industry and industry stakeholders across jurisdictions. The only among hobbyists about the status of many species species that have been included in the proposed already here (and, in many cases, still actively traded noxious list are those to which all OFPWG members in industry and hobby circles). Attempting to remove agreed. The separation of the list into species noxious some of this uncertainty, particularly in the context of in all jurisdictions and a smaller number of species identifying future potentially invasive species and noxious under certain climatic or other conditions regulating them accordingly, was one of the key takes into account the limited chances of drivers in the formation of the OFPWG. establishment of the species in the smaller section if One of the terms of reference of the OFPWG was to released in non-optimal regions. develop a nationally agreed list of high-risk noxious Where there was not unanimous agreement on the species. As shown in Chapter 2, a number of noxious status of a species, it was added to what is described species lists are currently in use across jurisdictions; in this report as the ‘grey’ list. Species on the grey list these range from those containing a few species to require further scientific review and investigation to comprehensive lists. When the OFPWG was formed, determine whether they should be added to, or both Queensland and Victoria were in the process of exempted from, a national noxious species list in the reviewing their noxious species listings. Both future. jurisdictions agreed to utilise the OFPWG process to It should be noted that the species currently on the progress their deliberations, with a view to adopting grey list are those that were being considered by any nationally agreed noxious species list. The starting jurisdictions for possible addition to their own point for consideration of the nationally agreed list noxious species lists. was a compilation of existing jurisdictional lists, including the species proposed for addition in Recent reviews of ornamental species thought to be in Queensland and Victoria. the country (McNee 2002) list many species that are not on the current permitted import lists and that do All jurisdictions assessed this list of species not appear on either of the proposed lists. Potentially, independently, and results were compiled to form the these species should be added to the grey list (along agreed list. Uniform criteria for listing were not with any other species that subsequently come to light predetermined; however, reasons were provided when in the trade or hobby sectors) for further review and a species was proposed as noxious, and these followed clarification of their status. the primary criteria by which potential ‘pestiness’ of a

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 11 Any species proposed for addition to the live import Live rock list under the EPBC Act would still be required to be assessed for potential environmental risk, consistent ‘Live rock’ is material considered to include live coral, with the requirements of that legislation. live sand and coral rubble. According to Oz Reef Marine Park (1997) and Fossa and Neilsen (1997), coral rock is colonised and burrowed through by Proposed action various organisms, such as: • bacteria Subject to the endorsement of the proposed national noxious species list by the Natural Resource • unicellular animals (Protozoa) Management Standing Committee, there will need to • sponges (Porifera) be a process to gather information and assess the status of species on the grey list. This is a national • cnidarians (soft and hard corals) priority if management and control of ornamental fish • flatworms (Platyhelminthes) across Australia is to be successful. • threadworms (Nematoda) The OFPWG has proposed that a scientific/technical • ringed worms, annelids (Annelida) working group be established, drawing relevant expertise from around the country (academia, • peanut worms (Sipunculida) museums, government, industry and private sector) to • crustaceans (crabs, shrimps, other Crustacea) conduct assessments of these species. The proposal is • sea spiders (Pycnogonida) that grey list species could be put through the risk assessment framework outlined in Chapter 2, with the • molluscs (clams, nudibranchs, snails, chitons, other scientific/technical working group providing Mollusca) information on species (although detailed information • bryozoans (Bryozoa) will be limited for many species) and ultimately deciding the status of species guided by the outcome • entoprocts (Entoprocta) of the risk assessments. It is critical that the PIAA and • echinoderms (starfish, brittle stars, other representatives of the hobby sector are directly Echinodermata) involved in this process, or acceptance of the process • ascidians or sea squirts (Ascidiacea) and the outcome by the wider ornamental fish/aquarium trade will be unlikely. • algae (including coralline, micro and macro algae). Those species that have been through the assessment The use of live rock in marine aquaria is considered a process and are not considered for addition to the natural method of filtration to remove the pollution national noxious species list would then constitute a caused when uneaten food, excreta and other alien group of low-risk species known to be in the trade or matter breaks down into nitrogen gas and forms hobby sectors. It would then be up to individuals or nitrates (Hargreaves 1978). industry, should they so desire, to have the species Because of the costs of collection, protective assessed by the DEH and BA for addition to the packaging and shipping, live rock is an expensive way permitted import list. of cycling the tank, compared with other methods Because the DEH has indicated that it plans to use the such as adding ammonia directly to the tank or using risk assessment framework outlined in Chapter 2 as mechanical filters. Only the more enthusiastic and one of its tools for future live import determinations, dedicated aquarists maintain marine aquaria, but live there is a reasonable expectation that the assessments rock use is considered to be increasing in Australia. conducted through the scientific/technical working Information provided by the various state and group could be utilised in future DEH assessments, territory fisheries agencies (Table 2) indicates that thereby potentially reducing the timeframe for the live most live rock and coral collected in Australia import assessment process. If, however, a species is originates from Queensland reefs. Smaller amounts found to fall outside the scope of the existing are harvested from reefs in Western Australia and the BA–AQIS ornamental fish risk assessment (AQIS Northern Territory. 1999), the species would also need to undergo risk assessment by BA. The OFPWG was also tasked with investigating other potential risks in the aquarium trade, including live rock and aquarium plants. Details of the group’s considerations of those matters are provided below.

12 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA TABLE 2 Indicative information about live rock harvesting in Australia

STATE/ ESTIMATED NUMBER OF COLLECTION LOCATION TERRITORY ANNUAL LICENCES/PERMITS LOCATION OF SALE HARVEST OF (INDICATIVE LIVE ROCK (KG) ONLY)

Queensland 10,000 – 20,000 Live coral and rock — 60 Mostly Cairns/ Qld, NSW, Vic. (22 in Great Barrier Reef Townsville and Marine Park) Mackay

Western 1500–3000 Live rock — 3 Majority around WA, NSW Australia Live coral — 5 Exmouth – Port Headland Live sand — 0 (may also be Some also slightly north collected under live rock of Shark Bay and around endorsement) Perth

Northern Territory 100–300 Aquarium collection — 12 Gove and Darwin regions Vic., SA, WA Harvest of coral (incl. live rock) — 3

The risks of introducing exotic species and diseases Potential management options through the movement of live rock have yet to be quantified. As most live rock originates in tropical Management options to address marine pest risks waters and is destined for markets in temperate from live rock should be developed in conjunction Australia, the tropical species in and on the rock with the National Introduced Marine Pests would be unlikely to establish viable populations in Coordination Group. Although the risks of the spread temperate southern waters. If an exotic pest or disease of marine pests through the trade in live rock and establishes in an area of Australia from which live associated aquarium products are likely to be minor in rock is sourced, the potential for translocation arises if comparison with risks from other activities (eg the the pest is not detected and contained, or if there is no trade in species with identified pest potential), several process for tracking live rock from the point of potential management options could be considered: collection to its final destination. • Improved education of public and industry about It is illegal under the EPBC Act to import species from the risk of dumping unwanted fish where they overseas into any part of Australia, other than those could end up in waterways, and the risk of species listed as approved for importation (this is microscopic organisms/spores from live rock enforced by AQIS and the Australian Customs entering waterways when tanks are cleaned. Service). As some live rock potentially carries a wide • Improved monitoring of and information sharing array of unknown species, it is not a permissible import; on the distribution of marine pests. this restriction must be continued, unless a thorough risk assessment suggests otherwise. It is not known • Increased regulation of the trade in live rock within whether an illegal ‘black trade’ in imported live rock Australia. This could involve tracing the movement exists, and this possibility cannot be ruled out. of live rock between states and territories, possibly through a permitting/licensing process. The prospect of effective control/compliance of illegal imports would also have to be considered.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 13 • Certifying cultured products, which could involve Aquatic plants enhancement of artificial culturing of live rock (see Box 1). The rock to be seeded would also need to The OFPWG also considered the issue of known be collected locally, taken from the terrestrial noxious weeds being traded within the aquarium environment or artificially created. There would industry. Problems arising from ornamental aquatic need to be ways of sanitising the rock or certifying plants are well documented, particularly through the what would grow when the rock is introduced work of the Cooperative Research Centre for to a tank. Australian Weed Management (the Weeds CRC) and A descriptive paper on live rock in Australia was state and territory agencies. prepared for the OFPWG and is held at the Bureau of Good summaries of nationally noxious aquatic plants Rural Sciences, Canberra. and those that are considered problems in particular jurisdictions can be found at the websites of the New South Wales Department of Land and Water BOX 1 Conservation8 and the National Weeds Strategy.9 A list of key noxious plant species is provided in Culture of live rock in the United States Appendix 2 of this report. A limited survey of plants for sale in the aquarium Due to the large amounts of coral rock being industry (including those sold as pond plants for exported from the Florida Keys in the early 1990s, outdoor use) indicated the availability of about a Florida banned the harvest of live rock from its dozen species listed as weeds, either nationally or in waters in 1997. As a result, marine ornamental one or more jurisdictions. The OFPWG acknowledged companies in the United States started to develop aquaculture for live rock. To ‘create’ live rock, that it did not have extensive expertise in water ordinary dry rock is placed in the ocean and plants, but recognised the need to establish national harvested one to several years later. linkages between groups currently working on noxious aquatic plants (such as the Weeds CRC) and Live rock can be purchased either ‘cured’ or ‘uncured’. On collection from the ocean, the rocks to encourage a review of ornamental aquatic plants. harbour a large variety of sea life, some of which Further, fisheries agencies and their enforcement (such as certain species of anemones and mantis officers need to develop the capacity (training, field shrimp) are common pests on live rock. ‘Uncured’ guides, etc) to recognise noxious plant species rock is rock that has been collected and directly that they may encounter in dealings with the exported. ‘Cured’ rock, on the other hand, is material aquarium industry. that has been placed under a fine spray of highly saline water for several hours or days before export. The objective is to keep the coralline algae alive but kill and wash out less hardy, unwanted organisms, which would foul the tank water.

8 http://www.dlwc.nsw.gov.au/care/wetlands/facts/paa/weeds 9 http://www.weeds.org.au/

14 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA CHAPTER 4 PROPOSED REGULATORY FRAMEWORK

The breeding and sale of ornamental fish is being BOX 2 controlled and regulated in a number of different ways by the various jurisdictions, ranging from When is a hobby a business? internal policy arrangements through to legislative arrangements. Currently, there is no consistency of approach across Australia, which creates uncertainty The courts have provided some guidelines to help among both industry and the general public about the determine whether an activity is a business or a hobby, but there are no hard and fast rules. The movement and sale of fish between states and Australian Taxation Office looks at all the territories. Existing regulations specific to the circumstances of a case in determining whether a ornamental fish industry across jurisdictions are business exists. Guidelines adopted by the courts summarised in Appendix 3. include the following: One major issue is that the largest sector in the • Does the activity have a significant commercial industry is the hobbyist or enthusiast group. The purpose or character? policy or regulatory boundary between a ‘hobby’ and • Does the person have more than just an intention a ‘commercial activity’ is blurred and open to various to engage in business? interpretations. Currently, there is no clear direction • Does the person have a purpose of profit as well as from the jurisdictions on this matter. However, it is a prospect of profit? important to recognise that this strategy is primarily focused on large-scale operators who are breeding • Is there repetition and regularity to the activity? large numbers of fish, not the local hobbyist with a • Is the activity of the same kind and carried on in a small number of fish in a tank in their home. similar manner to businesses in that industry? In some jurisdictions, there is friction between licensed • Is the activity planned, organised and carried on in commercial aquaculture operators and ‘backyard’ a businesslike manner? breeders. In general, the main complaint from licensed • What are the size, scale and permanency of the aquaculture operators is that they are required to activity? obtain development consents from local government, • Is the activity better described as a hobby, pay licence or permit fees to state regulatory bodies, recreation or sporting activity? and pay appropriate taxes. The backyard breeder or hobbyist might not obtain such approvals, nor pay such charges. This results in tough competition in the The reasons for seeking to regulate the ornamental ornamental fish market, allows ‘noxious’ fish to be fish trade in Australia include: freely traded without much chance of detection, and • to provide a communication capability (distribution creates an obvious pest and disease risk. lists) to industry breeders and stakeholders for current information and educational materials on management issues • to provide an avenue through which to monitor and control disease (including point-of-import records to determine possible trends or to give advance warning of potential disease problems with offshore suppliers)

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 15 • to ensure that all appropriate local and state The Pet Industry Association of Australia has government regulatory requirements are being met developed a voluntary code of practice for its (publicity about poor adherence to regulatory members. The association is also working towards an requirements by a licensed operator may also reflect accreditation scheme whereby member operators badly on other licensed operators) would have the option of going through a series of • to confirm the status of species being traded training programs to achieve accredited operating standards and also submit to an auditing regime to • to address the minority of illegal operators ensure that standards are being maintained. While • to reduce or eliminate smuggling distribution points these schemes would only apply to member premises, for noxious fish or endangered species. if accreditation programs are successful in improving standards of operation, it is hoped that commercial In most jurisdictions, the keeping and/or trading of pressure would mean that accreditation will have pets is controlled by various means, which may significant financial benefit and there will be an include: incentive to pursue it. Details of the code of practice • restrictions on numbers that may be kept by and accreditation scheme are in Appendix 4. individuals in urban areas, and licensing arrangements for those wishing to keep more than the permitted numbers (eg breeding kennels or Decision support trees for regulation of the poultry breeders) ornamental fish trade and hobby sectors • licensing arrangements for the keeping of native fauna The decision trees in Figures 2 and 3 have been developed to help jurisdictions consistently classify • licensing arrangements for the keeping of exotic operations into particular sectors of the ornamental animals fish industry. They do not provide prescriptive • licensing arrangements for the keeping of noxious regulatory frameworks because, in many cases, or pest species. control may fall outside formal regulatory Therefore, the precedent of regulating hobbyists is frameworks. Instead, they require individual already in place for non-aquatic animals, and jurisdictions to examine their existing regulatory regulation of the aquarium fish trade may fit in with frameworks and amend them as necessary to provide other pet industry sectors. That said, the regulation a consistent framework across Australia. applied at this level is usually low cost and may The decision trees provide regulators, those in the simply be a one-off or annual permit, or even a ornamental fish industry and hobby sector, and the voluntary registration through some form of online general public with simple pathways for determining system. Registration would assist with compliance, how a particular activity should be classified. Working disease control and communication programs. through the first tree, for example, it is obvious that a The aim of regulation at this level is not to raise person trading the odd fish with fellow hobbyists or revenue or to apply ‘zero tolerance’, but to establish at a local fete is not running an ornamental fish networks through which information can be gathered business. Similarly, following that line through the and distributed for better long-term management (eg second tree, it is clear that regulatory agencies would disease or pest notifications, changes to regulation, only be interested in the activities of that person if permitted/prohibited species). they were keeping and/or breeding particular species (either noxious or determined to be of special interest Similarly, the classification of large-scale breeding after the assessment process), or to provide the person activity in the hobby sector as aquaculture under state with general information of interest (new regulations is not an attempt to leverage licence fees permitted/prohibited species, known disease or pest from non-commercial operations, but rather to ensure issues, etc). consistency of accountability and traceability of product across all large-scale producers for the The note at the bottom of the second tree is purposes of future management. In some jurisdictions, important. There have been concerns that, under this this may require minor regulatory changes to decision framework, large hobby operations could fall recognise different classes of aquaculturalists for within the water volume criteria to be considered for a licensing/levy purposes. state or territory aquaculture permit. Most concern stems from the costs associated with the permit system in some jurisdictions. During discussions with Regulation of pet shops jurisdictional aquaculture regulators, it was recognised that this is a minor issue that can be clarified by the Pet shops in most jurisdictions are not required to be introduction (in regulations) of a tiered permit system licensed or registered by fisheries agencies, and may in those jurisdictions without such a system. The only require licensing by local government or the tiered permit system would create a minor registration jurisdiction’s environmental protection agency if they permit, possibly based on additional criteria such as dispose of wastewater to the sewerage system or the ‘qualifying as operating a business’ (see Box 2). environment.

16 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA NO Pets NO Barter/trade YES Hobby NO Retail YES Sell only to trade to Sell only SELL FOR PROFIT SELL FOR YES Grower/aquaculture importer wholesaler YES Registered business Registered (ABN etc) NO Hobby NO Advertise YES Considered as Considered operations retail purpose of for regulation FIGURE 2 Classification of activities on the basis of the sale/trade of fish of activities on the basis sale/trade Classification

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 17 8ASTRATEGIC APPROACH TO THE 18 FIGURE 3 Ornamental fish regulation decision tree

EXISTING AQUACULTURE PERMIT (FISHERIES) FOR FACILITIES

YES NO

Planning/environmental/

MANAGEMENT OFORNAMENTAL FISH council approvals for facility

NO YES

Is fish breeding actively taking place?

Breed for sale YES NO

YES NO Sale to public?

IN AUSTRALIA Volume of water Association >10 000 litres membership YES NO

Retail YES NO YES NO Wholesale May consider state aquaculture permita

Industry Applicable state aquaculture Hobby Pets accreditation Hobby permita program May require registration for certain spp

May require Info distributed registration for through retailers Registration Public aquaria certain spp with sale with state code of practice Comply with appropriate state regulations

Import a ‘Applicable state aquaculture permit’ refers to the regulatory framework operating within a jurisdiction. AQIS certification for quarantine In many jurisdictions there is a tiered system whereby full regulation would only be applied to large approved facilities commercial operators while smaller operations might only be registered (for a minimal fee). CHAPTER 5 MANAGEMENT OF ORNAMENTAL PESTS AND NOXIOUS SPECIES IN AUSTRALIA

In developing a regulatory framework for ornamental agreement is reached on national noxious species lists fish, it is important to recognise the diversity of and guidelines such as those outlined in the table players involved, including aquaculturalists, breeders, below, regulation should have much in common wholesalers, importers, retailers, and hobbyists and across jurisdictions. enthusiasts. To date, discussions on regulation have The next stage in the process would be the focused on the need to improve knowledge of the establishment of an implementation plan to guide the species of fish available, and of when and where they adoption of the nationally agreed approaches outlined are being traded. in this strategy and to address cross-jurisdictional With the development of a new national noxious species issues, such as translocation and movement and list to supplement import lists, there will also be a regulatory or licensing requirements for such actions. need to create clarity and certainty about those species Nationally agreed guidelines for the translocation of that can be possessed and traded, particularly for species live aquatic organisms already exist (MCFFA 1999); considered noxious that are already in the country. there are also existing regulatory frameworks for the The decision trees in Figures 2 and 3 are an attempt to movement of other live animal species across develop pathways to: Australian jurisdictions, and these may well guide the development of such arrangements for exotic fish. • classify an operation type on the basis of sales of or Regulations controlling movements should trade in fish complement the national translocation policy. • determine the level of regulation that should be An implementation plan would also need to finalise applied in different situations. appropriate reporting arrangements to review progress The next stage of regulation of aquarium species is the on the implementation of agreed actions within the development of a process for dealing with those strategic plan. Much of the on-ground implementation species that it is determined should be removed or will fall to jurisdictional fisheries agencies. However, controlled. Table 3 is a summary of options derived because of the close links between this work and from discussions by the OFPWG. current work on marine pests and aquatic disease risks, it will be important to ensure that longer term It will be necessary to develop an agreed set of arrangements maintain those linkages. Marine species decision rules that can be incorporated into the represent only a small proportion of the total regulatory framework to support existing regulatory aquarium trade, but some species that may be arrangements within jurisdictions. Where there is no imported or translocated could have a significant existing framework, these decision rules may form the impact on Australia’s marine environment if released. basis of new regulation. Actions involving ornamental marine species should This strategic planning document sets out a be developed in conjunction with the National framework for future management of ornamental fish. Introduced Marine Pests Coordination Group to For most issues, implementation will mainly occur ensure that they are integrated into the National within individual jurisdictions. Assuming that national System for the Prevention and Management of Marine

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 19 Pest Incursions. This system should develop a noxious Options available for management of undesirable ornamental marine species list, assess risks from the species fall into three categories, as shown in Table 3: translocation of live rock, and improve the • nationally agreed noxious species information available on marine species that are or might be traded in Australia. Communications • jurisdiction-specific noxious species activities should be developed to ensure consistency • high-value species or those listed by the Convention with the National System and to take advantage of on International Trade in Endangered Species established networks in the aquarium industry. (CITES) or the International Union for Conservation of Nature and Natural Resources (IUCN).

TABLE 3 Options available for management of undesirable species

ACTIONS SPECIES STATUS

NATIONAL JURISDICTION- CITES COMMENTS NOXIOUS SPECIFIC IUCN NOXIOUS RARE

Education/awareness Y Y Y Preparation and distribution of consistent information

Amnesty Y N N First option for noxious species removal after agreement of noxious species list

Buyback Y N N Alternative option for more valuable species or added incentive

Permit Ya NYc Used for CITES, display (public Registration N Y Yc aquaria, etc), research and high-value species already in the countrya

Ban Y N Yc Second-tier consideration; would need a well-developed enforcement plan (national agreement)

Sterilise Yb N N Limited situations (linked to Microchip Yb N Y permits above)

No sale Y N Y Always. Would also be listed as No translocation Y N Y permit conditions. (Breeding may be No breeding Y N N permissible in research situations with conditions on permit re handling)

Report existence Y Y Y Mandatory requirement

CITES = Convention on International Trade in Endangered Species; IUCN = International Union for Conservation of Nature and Natural Resources a limited to life of animal in high-value/cultural significance cases only. b mandatory conditions in restricted permitting situations c regulations exist

20 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA CHAPTER 6 COMMUNICATION PLAN

An essential part of any strategic plan is a clear (eg Queensland’s Ornamental Fish Can Become indication of the tools by which the plan’s messages Monumental Pests); other jurisdictions can benefit can be communicated to a range of audiences. The from the exchange of ideas and the development keys to successful communication are to identify the work that has already been done. messages and the target audiences and to ensure that The main objective of developing a communication the messages are appropriately constructed for the plan is to develop communications material that can audiences. Similarly, a range of communication tools be utilised by all Australian jurisdictions, thereby are available, and it is important to choose the reducing the cost and effort for each jurisdiction while medium that will most effectively get the message to ensuring a consistent message across the country. This the audience. Where possible, the communication plan can be achieved by: should link with associated communication strategies. • development and delivery of training packages for For the ornamental fish strategy, the target audience fisheries compliance staff to ensure that they can can be broadly divided into the general public and the identify particular ornamental species and industry sector. Hobbyists probably fall within both understand the risks from those species audiences (depending on the scale of their operation) and will therefore need access to the full range of • production of general educational materials (flyers information. or posters that can be distributed through retail outlets) on the risk posed by ornamental fish to A communication strategy is absolutely essential to marine and freshwater ecosystems and, importantly, minimise misinformation and produce community what to do if fish are no longer wanted understanding and awareness about the potential threat of ornamental fish and plants to our • production of information sheets (fish environment. Better communication between industry facts/notes/brochures) on species or groups of and regulators about the status of species and the species of particular significance that have provision of timely updates on changes in regulatory established feral populations, providing detailed arrangements will be key factors in improving hobby information for the community on the impacts and trade practices. of those populations and details of control or eradication programs The key message for community education is that ‘ornamental fish are wonderful pets, but they should • further development of a cooperative working never be released into natural waterways’. The aim is relationship with the aquarium industry, to develop a range of material identifying noxious particularly via a joint ‘Don’t dump your aquarium species, and giving tips about what to do with fish’ campaign unwanted fish and what the individual can do to • development of networks between regulators, prevent spread of a pest species. Basic information industry and major hobby groups to ensure that brochures would be made available through aquarium information on regulatory changes gets to the retail outlets; industry representatives have indicated groups that need it, and also to provide for input to that they will cooperate by making this information the regulatory process by these stakeholders. available to new fish purchasers. Relevant material is already well developed in some jurisdictions A communication strategy will be finalised as part of the implementation plan.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 21 CHAPTER 7 RECOMMENDATIONS AND NEXT STEPS

The strategic plan recommends the following actions Next steps to manage ornamental fish in Australia. 1. Agree on and adopt a national noxious species list If the Natural Resource Management Standing across all jurisdictions, noting links to existing lists Committee supports the above recommendations, and lists under development for marine pest species. development of an implementation plan will be required. The plan needs to address the need for a 2. Agree to review the status of fish on the ‘grey list’. process of consultation with stakeholders, including: 3. Establish a technical working group reporting to • national education on the new noxious species list the Natural Resource Management Standing and the new regulatory and management Committee (through the Marine and Coastal arrangements (government and industry to Committee), to conduct assessments of fish on the communicate through agencies and customers); grey list over the next 2–3 years. • implementation of new regulatory arrangements by 4. Adopt a regulatory framework and licensing to each jurisdiction; manage large fish-breeders and ornamental fish importers in each state and territory. • agreement on management and funding mechanisms to deal with noxious fish being traded 5. Agree on control mechanisms for noxious fish and and kept in the community. rare fish (eg CITES listed) already in circulation in Australia, again noting links to control plans for A draft communication plan will form a framework marine pests of concern. for delivery of many of these objectives. 6. Request that an appropriate authority (for example, The Marine and Coastal Committee will also need to the Weeds CRC) conduct a rigorous review of consider the outcomes of the review by the Aquatic aquatic plants used in the ornamental fish trade, in Animal Health Committee of disease risks associated order to control and regulate the spread of a with ornamental fish when that review is finalised, number of recognised aquatic pest species. and any implications the review may have for future management actions for the ornamental fish sector. 7. Implement a national communication strategy to raise awareness in the community and industry about the management, control and regulation of ornamental fish and invertebrates.

22 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA REFERENCES

ABARE (Australian Bureau of Agricultural and McDowall RM (2004). Shoot first, and then ask Resource Economics) (2004). Australian Fisheries questions: a look at aquarium fish imports and Statistics 2003. ABARE, Canberra. invasiveness in New Zealand. New Zealand Journal of Marine and Freshwater Research. 38:503–510. AQIS (Australian Quarantine and Inspection Service) (1999). Import Risk Analysis on Live Ornamental MCFFA (Ministerial Council on Forestry, Fisheries Finfish. Commonwealth of Australia, Canberra. and Aquaculture) (1999). National Policy for the Translocation of Live Aquatic Organisms: Issues, Bomford M (2003). Risk Assessment for the Import Principles and Guidelines for Implementation. and Keeping of Exotic Vertebrates in Australia. Department of Agriculture, Fisheries and Forestry, Bureau of Rural Sciences, Canberra. Canberra. Bomford M and Glover J (2004). Risk assessment McNee A (2002). A national approach to the model for the import and keeping of exotic management of exotic fish species in the aquarium freshwater and estuarine finfish. Unpublished trade: an inventory of exotic freshwater species. report to the Department of the Environment and Report to the Fisheries Resources Research Fund. Heritage. Bureau of Rural Sciences, Canberra. Bureau of Rural Sciences, Canberra. Fossa SA and Neilsen AJ (1997). The Modern Coral Oz Reef Marine Park (1997). Live rock. Reef Aquarium, Volume 1. Ricordea Publishing. http://ozreef.org/reference/live_rock.html Hargreaves VB (1978). The Tropical Marine Patrick J (1998). Aquarium fish culture. In: Aquarium. AW and AH Reed, New York. Proceedings of the Queensland Warmwater Lintermans M (2004). Human-assisted dispersal of Aquaculture Conference (Status and Potential). alien freshwater fish in Australia. New Zealand Aquaculture Information Technologies, Taroom, Journal of Marine and Freshwater Research Queensland. 38:481–501.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 23 APPENDIX 1 PROPOSED NOXIOUS LIST AND GREY LIST SPECIES

PROPOSED NOXIOUS FISH Noxious in all jurisdictions

FAMILY SPECIFIC NAME COMMON NAME

Acestrorhynchidae Acestrorhynchus microlepis

Alestiidae Hydrocynus spp Pike characin Hydrocynus goliath Giant tigerfish

Amiidae Amia calva Bowfin

Anabantidae Anabas testudineus Climbing perch

Bagridae Anaspidoglanis macrostoma Flatnose catfish Bagrus ubangensis Ubangi shovelnose catfish

Centrarchidae — entire family Banded or spotted sunfish, largemouth bass, bluegill

Centropomidae Centropomus (12 spp) Snooks Lates microlepis Forktail lates Lates niloticus Nile perch

Channidae Channa spp Snake head

Chacidae Chaca chaca Angler, frogmouth and squarehead catfishes

Characidae Colossoma spp Serrasalmus spp Redeye piranha Pygocentrus spp Red piranha

Cichlidae Boulengerochromis microlepis Giant cichlid, yellow belly cichlid Oreochromis spp Tilapia Sargochromis spp Pink, slender, greenwoods, mortimers, cunean and green happy Sarotherodon spp Melanotheron melanotheron Blackchin tilapia Serranochromis spp Tilapia spp. All except T. buttikoferi Redbelly tilapia

Citharinidae entire subfamily Ichthyborinae African pike-characin, tubenose poacher, fin eaters

24 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA FAMILY SPECIFIC NAME COMMON NAME

Clariidae Clarias spp Walking catfish

Cobitidae Misgurnus anguillicaudatus Weatherloach

Cyprinidae Aristichthys nobilis Bighead carp Barbodes hexagonolepis Copper mahseer Catla catla Catla Catlocarpio siamensis Giant barb Cirrhinus cirrhosus Mrigal Ctenopharyngodon idella Grass carp Cyprinus carpio Carp Labeo calabasu and L. rohita Orange fin labeo, rohu. Zacco platypus Freshwater minnow Hypophthalmichthys molitrix Silver carp Tor spp (17) River carp, Deccan, high backed, jungha, putitor, Thai mahseer

Doradidae Oxydoras spp(4) Ripsaw catfish, black doras, black shielded catfish

Elassomatidae Elassoma spp Pygmy sunfish

Eleotridae Oxyeleotris marmorata Marble goby

Erythrinidae Erythrinus spp Trahiras Hoplerythrinus spp Hoplias spp

Esocidae Esox spp Pikes

Gasterosteidae Pungitius pungitius Ninespine stickleback

Gobiidae Acanthogobius flavimanus Yellow fin goby Tridentiger trigonocephalus Chameleon goby, striped goby

Gymnarchidae Gymnarchus niloticus Aba aba

Gymnotidae Electrophorus electricus Electric eel

Hepsetidae Hepsetus odoe African pike

Heteropneustidae Heteropneustes fossilis Stinging catfish

Lepisosteidae Atractosteus (3 spp) American, armoured or Lepisiosteus (4 spp) alligator gars

Malapteruridae Malapterurus spp Electric catfish

Mormyridae Mormyrops anguilloides Bottlenose, Cornish jack

Poeciliidae Belonesox belizanus Pike minnow, pike killifish Gambusia spp Mosquito fish

Protopteridae Protopterus annectens African lungfish

Schilbeidae Schilbe mystus African butter catfish

Siluridae Silurus spp European catfish, wels catfish

Trichomycteridae Paravandelia oxyptera Parasitic catfish

Valenciidae Valencia hispanica Valencia toothcarp

Cambaridae Procambarus clarkii Red swamp crayfish

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 25 PROPOSED NOXIOUS FISH Noxious in particular climatic or other conditions

FAMILY SPECIFIC NAME COMMON NAME

Cichlidae Hemichromis fasciatus Banded jewelfish

Cyprinidae Notropis spp Shiners Phoxinus erythrogaster Southern redbelly dace

Gasterosteidae Apeltes quadracus Four spined stickleback Culaea inconstans

Polyodontidae Polyodon spathula Mississippi paddlefish Psephurus gladius Chinese swordfish

GREY LIST (species requiring further information/consideration and risk assessment)

Note: This list is by no means exhaustive and should not be taken as definitive. A technical working group will be adding to the list as it assesses and reviews the species currently in Australia.

FAMILY SPECIFIC NAME COMMON NAME

Acipenseridae Acipenser spp Sturgeons

Anabantidae — entire family Ctenopoma (21 spp) Ctenopoma ansorgi Ctenopoma argentoventer Ctenopoma nanum Anabas (2 spp) Microctenopoma (11 spp) Microctenopoma ansorgii

Chacidae Chaca spp Angler catfishes, frogmouth catfishes

Characidae Astynax spp Astyanacinus spp Bryconops spp Bryconops affinis Bryconops melanurus Ctenobrycon spp Hollandichthys multifasciatus Knodus savannensis

Cichlidae Amphilophus citrinellus Midas cichlid, false red devil cichlid, citrinellum Amphilophus zaliosus Amphilophus labiatus Red devil Caquetaia kraussii Bucketmouth Caquetaia spectabilis Caquetaia umbrifera Turquoise cichlid Cichla spp Peacock cichlid, tucanare Cichlasoma urophthalmus Mexican mojarra

26 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA FAMILY SPECIFIC NAME COMMON NAME

Cichlidae CONTINUED Crenicichla spp Crenicichla lacustrus Crenicichla lepidota Crenicichla notophthalmus Crenicichla saxatilis Herichthys cyanoguttatum Rio Grande cichlid Parachromis dovii Guapote, wolf cichlid Parachromis managuensis Guapote tigre, jaguar cichlid Parachromis motaguensis False yellow jacket cichlid Petenia splendida Bay snook

Ctenoluciidae Ctenolucius spp Ctenolucius hujeta Boulengerella spp Gar characin, hujeta

Dasyatidae Himantura spp Freshwater stingray

Cyprinidae Tinca tinca Tench Rutilus rutilus Roach

Eleotridae Eleotris spp Batanga lebretonis Sleepers

Fundulidae Fundulus spp Fundulus chrysotus Leptolucania spp Leptolucania ommata Adinia spp Adinia xenica Lucania spp Topminnow

Ictaluridae — entire family except Ameirus (7 spp) Prietella, Satan and Trogoglanis, Ictalurus (9 spp) which are harmless and IUCN listed Ictalurus punctatus Bullheads, madtoms Pylodictis (1 spp) Noturus (26 spp)

Lebiasinidae Lebiasina spp Lebiasina bimaculata Twospot lebiasina

Lepidosirenidae Lepidosiren paradoxa South American lungfish

Mastacembelidae — subfamilies Mastacembelus spp Mastacembelinae and Caecomastacembelus spp Spiny eel, tyre-track eel, zig zag eel Afromastacembelinae except Aethiomastacembelus spp Macrognathus spp

Notopteridae Chitala spp Featherbacks or knifefish

Osteoglossidae Arapaima gigas Arapaima, giant arapaima, pirarucu Osteoglossum spp Osteoglossum bicirrhosum Arawana Scleropages formosus Golden arowana

Pangasiidae — entire family Pangasius (22 spp) Pangasius gigas Mekong giant catfish, shark catfishes, blue shark Helicophagus (3 spp)

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 27 FAMILY SPECIFIC NAME COMMON NAME

Percidae Perca fluviatilis European perch

Pimelodidae Leiarius spp Sailfin antenna, saddle or painted catfish Perrunichthys perruno Leopard catfish Phractocephalus hemioliopterus Red tail catfish Pseudoplatystoma fasciatum Barred sorubim (tiger catfish) Sorubim (5 spp) Duckbill catfish, shovelnose catfish Sorubim lima Sorubimichthys spp Brachyplatysoma spp

Poeciliidae Alfaro (2 spp) Amazon or knifetail livebearer Alfaro amazonus Alfaro huberi Heterandria spp Heterandria bimaculata Two-spot livebearer Tomeurus gracilis

Polypteridae Polypterus spp Birchirs or ropefish Polypterus enlicheri Polypterus retropinnis Erpetoichthys spp Erpetoichthys calabaricus

Potamotrygonidae Potamotrygon (18 spp) River stingrays Paratrygon (1 spp) Plesiotrygon (1 spp)

Protopteridae Protopterus (7 spp) African lungfish

Rivulidae Leptolebias spp Leptolebias aureoguttatus Leptolebias marmoratus Leptolebias minimus Leptolebias opalescens Leptolebias opalescens

Schilbeidae Schilbe spp African butter catfish

Siluridae Ompok spp Butter catfish Sandelia (2 spp) ctenopomas

Tetraodontidae Chelenodon spp (except C. patoca) Freshwater pufferfish Colomesus spp Chonerhinos (5 spp) Carinotetraodon (6 spp) Takifugu (~21 spp) Auriglobus (1 sp) Tetraodon (~22 spp)

28 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA APPENDIX 2 NOXIOUS AQUATIC PLANTS

WATER PLANTS AS WEEDS OF NATIONAL SIGNIFICANCE Source: http://www.dlwc.nsw.gov.au/care/wetlands/facts/paa/weeds/

COMMON SPECIFIC MUST BE SHOULD NOT BE MUST NOT BE NAME NAME CONTROLLED INTRODUCED SOLD OR IN INTO GROWN IN

Alligator weed Alternanthera NSW, ACT, NT, NSW, ACT, NT, NSW, ACT, NT, philoxeroides Qld, SA, Vic., Qld, SA, Vic., Qld, SA, Vic., WA, Tas. WA, Tas. WA, Tas.

Cabomba/ fanwort Cabomba caroliniana NSW, NT, Qld, NT, WA, Tas. NSW, NT, Qld, WA, Tas. WA, Tas.

Salvinia Salvinia molesta NSW, NT, Qld, NT, SA, Vic., NSW, ACT, NT, SA, Vic., WA, Tas. WA, Tas. Qld, SA, Vic., WA, Tas.

Senegal tea plant Gymnocoronis NSW, ACT, Qld, NSW, ACT, WA, NSW, ACT, Qld, spilanthoides WA, Tas., NT Tas., SA, NT WA, Tas., SA, NT

Largarosiphon Largarosiphon major NSW, ACT, NT, NSW, ACT, Qld, NSW, ACT, Qld, Qld, SA, Vic., SA, Vic., WA, Tas. SA, Vic., WA, Tas. WA, Tas.

Water lettuce Pistia stratiotes NSW, ACT, Qld, NSW, ACT, WA, NSW, ACT, Qld, WA, Tas., NT Tas., SA, NT WA, Tas., SA, NT

Water hyacinth Eichhornia crassipes NSW, ACT, NT, ACT, NT, SA, NSW, ACT, NT, Qld, SA, Vic., Vic., WA, Tas. Qld, SA, Vic., WA, Tas. WA, Tas.

Ludwigia, Peruvian Ludwigia peruviana NSW, Qld, SA Qld, WA, SA NSW, Qld, SA primrose

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 29 COMMON SPECIFIC MUST BE SHOULD NOT BE MUST NOT BE NAME NAME CONTROLLED INTRODUCED SOLD OR IN INTO GROWN IN

Horsetails Equisetum NSW, ACT, Qld, NSW, ACT, Qld, NSW, ACT, Qld, arvense SA, Tas., WA SA, Tas. SA, Tas.

Water caltrope Trapa natans Qld Australiaa Qld

Eurasian Myriophyllum Qld Australiaa Qld watermilfoil spicatum

Water soldier Stratiotes aloides WA, SA, Tas. WA, SA, Tas. Australia

Arrowhead/ Sagittaria montevidensis WA, SA, Tas., Qld sagittaria

Hornwort Ceratophyllum Tas. Tas. Tas. demersum

Leafy elodea/ Egeria densa or WA, SA, Tas. WA, SA, Tas. WA, SA, Tas., NT dense waterweed Elodea densa

Elodea/ Canadian Elodea canadensis WA, SA, Tas., WA, SA, Tas., WA, SA, Tas., pondweed NT NT NT

Hydrilla Hydrilla verticillata Tas. Tas., WA Tas.

Hydrocotyl Hydrocotyl SA, WA SA, WA SA, WA ranunculoides

Brazilian Myriophyllum Tas., WA Tas., WA Tas., WA watermilfoil aquaticum

Sagittaria, Sagittaria platyphylla SA, Tas., WA SA, Tas., WA SA, Tas., WA arrowhead or Sagittaria graminea ssp platyphylla

a under the Noxious Weeds Act 1993

WATER PLANTS WITH IDENTIFIED ESTABLISHMENT POTENTIAL

Umbrella sedge — Cyperus eragrostis An emergent sedge that is native to America. Although this sedge is an introduced plant, it provides habitat to a variety of wetland animals.

Barnyard grass — Echinochloa crus-galli An introduced emergent plant.

Yellow waterlily — Nymphaea mexicana The yellow waterlily has floating leaves and bright yellow flowers. Once established, it can be very difficult to eradicate. A major recommendation of this strategy is that an appropriate authority (eg the Weeds CRC) be requested to conduct a rigorous review of aquatic plants used in the ornamental fish trade, with the aim of controlling and regulating the spread of a number of recognised aquatic pest species.

30 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA APPENDIX 3 CURRENT REGULATION OF ORNAMENTAL FISH

JURISDICTION CURRENT LICENSING BASIS FOR LICENSING CRITERIA FOR ARE CRITERIA CURRENTLY ARRANGEMENTS ARRANGEMENTS LICENSING BEING REVIEWED? ARRANGEMENTS

Victoria In theory, anyone breeding Licensing arrangements Sections 42 and 43 of the We are currently considering or selling ornamental fish are targeted towards Act provide the criteria. In what appropriate licensing requires a licence or permit larger aquaculture effect, it states that you arrangement there should be under the Fisheries Act ventures, where fish are need authorisation under for the ornamental fish sector. 1995. However, currently produced for human the Act if you hatch, breed, we only license large consumption. display or grow fish for breeders. sale or other commercial purpose or use or create habitat to do the above.

South Australia South Australia has a Current licensing Currently in South Australia All management and licensing legislative basis, through arrangements for fish and according to legislation, arrangements are under review. the Aquaculture Act 2000, breeders are targeted if you breed any fish you South Australia will await the for licensing fish breeders. towards marine need to be licensed, and if recommendations of the Some producers of aquaculture ventures. It is you want to keep fish on Ornamental Fish Policy Group aquarium species are not known how applicable the ‘permitted’ lists you before reviewing licensing already licensed under the this system would be for need a permit. In practice, arrangements thoroughly. Aquaculture Act, and the ornamental fish trade. if you breed ornamental fish, powers exist within this A permit system is you most likely have not legislation to move proposed in the review to date been required by towards broader licensing of the Fisheries Act, which Aquaculture SA to comply of ornamental fish is likely to be changed with the licensing system, breeders under the Act. in 2006. and most likely won’t have Upon application, permits a licence. This will be are issued under the addressed once the Fisheries Act 1982 for the ornamental fish review keeping of particular listed progresses to ensure a ‘permitted’ ornamental fish complementary approach species. There is currently with other states/territories. no impetus to enforce the permit system due to various flaws and difficulties.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 31 JURISDICTION CURRENT LICENSING BASIS FOR LICENSING CRITERIA FOR ARE CRITERIA CURRENTLY ARRANGEMENTS ARRANGEMENTS LICENSING BEING REVIEWED? ARRANGEMENTS

Queensland In theory, anyone breeding Licensing arrangements Act applies to all forms Yes or selling ornamental fish are targeted towards of aquaculture Development authority required requires a licence or permit larger aquaculture for anyone who wants to under the Fisheries Act 1995. ventures, where fish are conduct aquaculture (grow and However, currently we only produced for human sell fish). license large breeders. consumption. For smaller, low-risk developments, a self-assessment code has been drafted and is being tested. • No registration is required for developments >5000 L capacity. • Registration only required for developments with – pond area not exceeding 5 hectares – gross floor area not exceeding 50 square metres • note: there are some restrictions to the above. Larger developments, and those not considered low risk, require approval and permits.

Western Do not license the N/A N/A No. Australia retail sector. Department may support Prohibit import of changes if there are noxious fish. demonstrable benefits from Require operators to apply licensing in terms of protection for approval to translocate of environmental and fisheries aquaculture fish species values. National Competition Policy would have to be addressed, as well as resourcing issues. In short, we wouldn’t be doing it unless there were clear cost/benefits not achievable in cheaper ways.

Northern Import of live fish through Knowledge of who is Any individual/company No Territory permit system. importing and trading. trading in ornamental fish All aquarium sales Knowledge of what is meeting criteria described reported through licensing. being imported and traded. in the Northern Territory Licensing of ornamental Knowledge of origin Fisheries Act Regulations fish species production where the ‘fish’ are sourced. 182 and 199 under aquaculture permit Control of species imported for EPBC Act and noxious list considerations. Control for translocation issues with respect to disease issues.

Australian No licence required for Live fish imported/exported Section 22 Fisheries Act No. Capital sale of fish. from the ACT must be 2000. The import/export Territory Import licence required subject of licence. This is of live fish to/from the for live fish. Suitable live to enable the possibility ACT. Section 28 provides fish restricted by declaration. of trace forward/back in the ‘relevant considerations’. Pet trade is licensed and the event of an animal must report stock holdings disease outbreak. and numbers of live imports or exports.

32 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA JURISDICTION CURRENT LICENSING BASIS FOR LICENSING CRITERIA FOR ARE CRITERIA CURRENTLY ARRANGEMENTS ARRANGEMENTS LICENSING BEING REVIEWED? ARRANGEMENTS

New South Pet shops are not regulated Targeting of breeders Permit holders are required No Wales by NSW Department of rather than retail outlets. to abide by the same Primary Industries. protocols as other In theory, any person aquaculturalists. producing fish for the aquarium trade requires a permit under NSW Fisheries Management Act 1994. Presently, there are seven aquaculture permit holders producing aquarium fish.

Tasmania The only persons permitted Applications are assessed, All those who wish to No to sell freshwater fish are and licences/registrations import, breed and/or sell those persons holding: granted with conditions to freshwater fish. • a commercial freshwater ensure (as far as is fishing licence practical) that the site and • a fish farm licence system are adequate and • a fish dealers suitable, and that the registration, and operation does not pose an • an exemption permit. unacceptable risk in The ‘fish farm licence’ and relation to disease and the ‘fish dealers registration’ pest potential which could are both relevant to the adversely impact on freshwater aquarium fish cultured and native fish trade. Fish cannot be populations and their imported, bred or sold ecosystems. without a licence or The process itself is an registration appropriately educative device requiring endorsed. Conditions applicants to think about cover the activities and be aware of the permitted and the potential risks posed by species allowed. their business, but this is Applicants are required not the main focus of the to provide comprehensive licensing/registration information about their system. intended business, covering In the event that something applicant details, site does go awry, the licensing/ details, system design, registration system gives us species, culture techniques a greater capacity to trace and marketing. forward and back, and implement controls quickly and efficiently. Fees are charged for licences/ registration, but this is to offset the costs, not as a revenue raising exercise.

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 33 APPENDIX 4 PIAA ACCREDITATION SCHEME

THE ‘PIAA ACCREDITED 6. The auditor then travels to your region to do the MEMBER’ SCHEME compliance audits. All those successfully completing the Accreditation Audit are awarded a signed ‘PIAA Accredited Member’ certificate. The PIAA accreditation scheme in chronological sequence: 7. The ‘PAM’ database is then updated with your business as an accredited member and a special 1. PIAA Members request an Accreditation gold ‘Accredited Member’ decal and a wall-plaque Application from the PIAA office. The entire are produced and then forwarded to you. A digital Accreditation Audit criterion and details are laid ‘ACCREDITED MEMBER’ decal will also be made out in these papers. (No fee payable). available later in 2004 for advertising and 2. Applicants self-assess their operational practices promotional purposes. against the requirements in the audit that is based ‘Accredited Members’ remain so for three years, as upon our National Code of Practice and ensure long as the compliance standards are fully maintained, they meet all the requirements as outlined in the continuous financial membership of PIAA is accreditation audit criteria. maintained and the ownership of the business also 3. Having done the self-assessment and satisfied remains unchanged throughout the three-year period. yourself that you are compliant, you then request Any ‘Accredited Member’ that fails to maintain the an Accreditation Audit from the PIAA office using standards as laid out in the audit will be dealt with by the form supplied with the application paperwork. due process up to and including expulsion from our Upon receipt of the audit request, your details are association by the board of directors. Strong action entered into the PIAA Accredited Members must be taken as a result of a complaint of non- database as an Audit Applicant. (No fee payable). compliance because ‘Accredited Members’ represent 4. When PIAA has enough audit requests within your our association at the very highest level and we must region (this will vary) to make the audits be seen to enforce our highest standards by the public economically viable, you will be contacted by PIAA as well as our regulators. and invoiced for $275.00 incl. GST, payable within Note: At the time of printing this document, a change 7 days. Once paid, this fee is non-refundable. The of PIAA’s name to ‘Pet Industry Association of fee of $275.00 is the introductory fee applicable to Australia’ (PIAA) was imminent; this may affect the audit requests up to 1 March 2005, when the timing and production of certificates and other printed normal audit fee (TBA) will come into effect. matter and therefore possibly cause a slight delay in 5. Upon receipt of your fee, you will be contacted by the first audits. PIAA and confirmation of your auditing date is then given to you. (Within 4 weeks)

34 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA MEMBER’S CODE OF ETHICS 7 Members shall, wherever possible, accurately describe the needs and care of any animal sold 1 Members shall ensure that all animals under their and provide or promote any literature relevant to care shall be provided with humane treatment and the well-being of the animal after purchase. with correct and proper housing in accordance 8 Members shall not offer for sale any item or with applicable state and federal regulations. product that does not knowingly conform to 2 Members shall take any necessary action to applicable state or federal regulations or that may discourage any acts of cruelty or mistreatment to endanger the safety of the user or animal. animals under their care and to protect those 9 Members shall endeavour to maintain their animals from undue stress or discomfort. business premises in a clean and safe condition 3 Members shall not offer for sale any animal that is and provide any necessary ventilation or lighting known to be suffering from disease, illness or that may be required for the comfort of livestock, injury and shall seek prompt, proper veterinary employees and customers alike. attention for any animal in their care that is so 10 Members will trade in accordance with applicable affected. state and federal regulations and, by example, 4 Members shall ensure that any animal in their shall strive to promote the Australian pet industry care is provided with an adequate and proper diet, and the benefits of responsible animal ownership in accordance with the needs of the species. to potential customers and members of the general public. 5 Members shall not offer for sale any animal that is classified as protected fauna other than those species allowed under state and federal Acts, for Pet Industry Association of Australia LTD which the necessary certificates must be provided. PO Box 7108 6 Members shall ensure that employees in charge of Baulkham Hills Business Centre livestock shall be familiar with the care and needs NSW 2153 of such species or shall be under the supervision of a person who is knowledgeable and competent in Telephone (02) 98962899 this regard. Facsimile (02) 98963521 Email [email protected]

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 35 APPENDIX 5 ORNAMENTAL FISH POLICY WORKING GROUP MEMBERSHIP

Commonwealth

Department of Agriculture, Fisheries and Forestry • Fisheries and Aquaculture Branch • Bureau of Rural Sciences • Australian Quarantine Inspection Service – Product Integrity, Animal and Plant Health – Animal and Plant Program • Biosecurity Australia

Department of Environment and Heritage • Approvals and Wildlife Division

State/Territory

Environment ACT New South Wales Department of Primary Industries Northern Territory Department of Primary Industry, Fisheries and Mines Queensland Department of Primary Industries and Fisheries South Australia Primary Industry and Resources Inland Fisheries Service Tasmania Victoria Department of Primary Industries Western Australia Department of Fisheries

Industry/Hobbyist

Pet Industry Association of Australia Ltd One independent aquarium hobby representative (Victoria) One commercial fish breeding representative (NSW)

36 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA APPENDIX 6 REGIONAL CONTACTS

STATE/TERRITORY CONTACT PERSON TELEPHONE, FAX AND EMAIL

Australian Capital Territory Mark Lintermans Ph (02) 6207 21117 Senior Aquatic Ecologist, Fax (02) 6207 2122 Environment ACT. [email protected] PO Box 144, Lyneham ACT 2602

New South Wales Michael Holloway Ph (02) 9527 8592 Senior Conservation Manager, Fax (02) 9527 8576 Department of Primary Industries [email protected]

Northern Territory Andria Marshall Ph (08) 8999 2120 Fisheries, Department of Primary Fax (08) 8999 2065 Industry, Fisheries and Mines [email protected]

Queensland Peter Jackson Ph (07) 322 42185 Principal Scientist, Freshwater Fax (07) 322 42805 Fisheries and Habitat, Department [email protected] of Primary Industries and Fisheries, GPO Box 56, Brisbane. Qld 4001

South Australia John Gilliland Ph (08) 8226 2874 Project Officer, Marine Biosecurity Fax (08) 8226 0434 Program, PIRSA Fisheries, [email protected] GPO Box 1625, ADELAIDE SA 5001

Tasmania Jean Jackson Ph (03) 6233 2691 Senior Fisheries Management Officer, Fax (03) 6233 4141 Inland Fisheries Service, [email protected] PO Box 288, Moonah, Tasmania 7009

Victoria Karen Weaver Ph (03) 9658 4340 Principal Policy Analyst — Fisheries Fax (03) 9658 4380 Policy and Business Planning, Mob 0413 969786 Fisheries Victoria, [email protected] Level 22, 1 Spring Street, Melbourne, Vic. 3000

Western Australia Robert Tregonning Ph (08) 9482 7375 WA Fisheries Department, Fax (08) 9482 7389 3rd Floor, SGIO Atrium, [email protected] 168 St Georges Terrace, Perth, WA 6000

A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA 37 ABBREVIATIONS AND ACRONYMS

AFMF Australian Fisheries Managers Forum

BA Biosecurity Australia

CITES Convention on the International Trade in Endangered Species of Wild Fauna and Flora

DEH Department of the Environment and Heritage

EPBC Act Environment Protection and Biodiversity Conservation Act 1999

GMO genetically modified organism

IUCN International Union for Conservation of Nature and Natural Resources

OFPWG Ornamental Fish Policy Working Group

OGTR Office of the Gene Technology Regulator

PIAA Pet Industry Association of Australia

QAP quarantine approved premises

Weeds CRC Cooperative Research Centre for Australian Weed Management

38 A STRATEGIC APPROACH TO THE MANAGEMENT OF ORNAMENTAL FISH IN AUSTRALIA