Ecological assessment of the South Australian Marine Scalefish

Reassessment report prepared for the Department of the Environment and Energy

Department of Primary Industries and Regions South and

March 2019

Ecological assessment of the South Australian Marine Scalefish Fishery - Reassessment report prepared for the Department of the Environment and Energy.

Information current as of March 2019 © Government of 2019

DISCLAIMER PIRSA and its employees do not warrant or make any representation regarding the use, or results of the use, of the information contained herein as regards to its correctness, accuracy, reliability and currency or otherwise. PIRSA and its employees expressly disclaim all liability or responsibility to any person using the information or advice.

ALL ENQUIRIES: Jonathan McPhail Primary Industries and Regions SA (PIRSA) Level 15, 25 Grenfell Street GPO Box 1671, SA 5001 T (08) 8429 0508 E [email protected]

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Purpose

The purpose of this report is to provide an assessment of commercial South Australian Marine Scalefish Fishery (MSF) for the purposes of Part 13 and 13(A) under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act). This report updates information provided to the then Australian Government Department of Sustainability Environment, Water Population and Communities (now known as Department of the Environment and Energy, DotEE) in 2016.

The report has been prepared by the Fisheries and Aquaculture Division of the Department of Primary Industries and Regions South Australia (PIRSA) in accordance with the Guidelines for the Ecologically Sustainable Management of Fisheries 2nd Edition, and particularly addresses the level of change that has occurred since the 2016 assessment.

Level of assessment The South Australian MSF was assessed as an approved Wildlife Trade Operation in 2016. Since the last assessment, there have been changes in some areas of interest or particular issues as outlined in the Guidelines for the Ecologically Sustainable Management of Fisheries These have been reported in the annual fishery reports to DotEE.

Table 1: Level of assessment required by South Australian MSF

Issue Area of Interest Yes No Has there been any change to management Fishery X arrangements, and/ or fishing practices? Has there been any change to an environmental External Influences issue/influence outside of the fishery X management agencies control? Has there been any change in the nature, scale, Interaction with intensity of impact, and/or management X protected response? Has there been any change in the nature, scale Ecosystem impact or intensity of impact, and/or subsequent X management response? Target Stock Has there been any change in the target stock X Status status? By-product/ Has there been any change in the by-product X bycatch status. and/or bycatch stock status?

Considering the above, the level of submission requirement for the South Australian MSF is ‘Standard’.

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Background

The regulations that govern the management of the Marine Scalefish Fishery are the Fisheries Management Act 2007, the Fisheries Management (Marine Scalefish Fisheries) Regulations 2017, the Fisheries Management (General) Regulations 2017 and the Fisheries Management ( Processor) Regulations 2017.

The current management plan for the MSF, the Management Plan for the South Australian Commercial Marine Scalefish Fishery (MSF Management Plan), was adopted in 2013 and applies for a period of 10 years. A comprehensive review of this management plan for the purpose of determining whether the plan should be amended, replaced or reinstated without amendment, will be undertaken after the fifth anniversary of the commencement of the plan.

The MSF Management Plan, and other Marine Scalefish Fishery documents can be found at: http://www.pir.sa.gov.au/fishing/commercial_fishing/commercial_fisheries/marine_scalefish_fishery

Fishery

The MSF includes the take of most marine species of fish, molluscs, , annelids and sharks that occur in South Australia, but excludes Rock Lobster, , Abalone, and freshwater fish species, all of which are managed separately. There are more than 50 species of ‘scalefish’ taken by commercial fishers in South Australia, however, for the purpose of this report the main target species will be considered in three categories (primary, secondary and tertiary – see appendix A), as identified in the MSF Management Plan (PIRSA 2013).

Commercial Fishery

The total commercial catch of marine scalefish species in South Australia 2016/17 was 2,519 tonnes (Figure 1), valued at almost $23 million. The Marine Scalefish Fishery was responsible for the employment of around 576 full-time equivalent (fte) jobs through direct employment and jobs in flow-on businesses (Econsearch, 2018).

As at 1 March 2019 there were 304 Marine Scalefish Fishery licences and 3 Restricted Marine Scalefish Fishery licences. The number of licences in the fishery has decreased significantly from 865 licences in 1984. A number of other separately managed fisheries maintain some level of access to marine scalefish species. The level of access and restrictions on access varies between each fishery and, as with the MSF, these restrictions are implemented through a mix of regulations, licence conditions and other legal instruments. Further details on this access can be found in the MSF Management Plan (PIRSA 2013).

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The MSF is a multi-gear fishery that uses up to 21 types of fishing gear. The majority of fishing effort occurs in the line gear category including longlines, rod and lines and handlines. The use of nets including accounts for around 16% of fishing effort (Mackay 2018).

The MSF commercial fishery is primarily managed through input controls, however, a number of output controls are also used. A heterogeneous mixture of participants, fishing devices and licence conditions, make the task of managing this fishery complex. The large number of licence holders, the large number of species being targeted and variations and permutations of licence endorsements compounds the complexity of the current management arrangements. A description of the management arrangements, gear types and access arrangements for the MSF are provided in the MSF Management Plan (PIRSA 2013).

The State Government has established a 'Commercial Marine Scale Fisheries Reform Advisory Committee' to guide the development and implementation of a reform package for the South Australian commercial Marine Scalefish Fishery. Measures that may be considered include zoning, fleet rationalization and introduction of a modernised fisheries management system. As the Advisory Committee develops reform options, consultation will be undertaken with all licence holders to ensure all fishers have the opportunity to have input to the reform process.

Recreational Fishery

The South Australian recreational fishery is primarily managed through output controls in the form of daily bag and boat limits, and minimum and/or maximum size limits for all key species as well as a number of spatial and temporal closures that apply to both commercial and recreational fishers.

The most up to date information regarding the participation rates and demographics among recreational fishers is derived from the ‘South Australian Survey 2013/14’ (Giri and Hall, 2015). The survey estimated that approximately 277,000 South Australians recreational fished in 2013/14. This represented a participation rate of 18.3% of the South Australian population. A total of 89 individual species or species groups were reported as caught by recreational fishers in the survey period. The survey provided statistically robust estimates of recreational fish catch and effort for key species including , Snapper, Southern Garfish and Blue Swimmer Crabs among other species. This data is considered in stock assessments and other reports used in managing the commercial fishery.

See www.pir.sa.gov.au/fishing/publications/rec_fishing_survey for the full report.

For further details on the recreational fishing rules please go to; http://www.pir.sa.gov.au/fishing/recreational_fishing.

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Management changes in the fishery

There have been a number of changes in the management of the MSF since the last assessment, including:

Large Mesh Nets

PIRSA has introduced management arrangements to monitor the use of large mesh nets, which may include fishery area closures if effort levels in marine fisheries areas breach triggers. These arrangements have been implemented to address risks of Australian Sea Lion interactions in the MSF.

King George Whiting

In December 2016, PIRSA implemented the following management changes for King George Whiting in response to declining stock status in some areas of the State:

• A reduction in the state-wide recreational daily bag limit to 10 (from 12) and the boat limit to 30 (from 36) to improve the sustainability of the species and to return the recreational catch to within its allocated share of the resource;

• An increase in the legal minimum size limit to 32 cm (previously 31 cm) for all fishers, east of 136°E, which is adjacent to Cape Catastrophe on the tip of the Eyre Peninsula to allow more juvenile fish to reach the spawning areas near lower Yorke Peninsula;

• The introduction of an annual spawning spatial closure for the month of May over an area of southern , southern and Investigator Strait, where the take and possession of King George Whiting by all fishers is prohibited to provide undisturbed spawning opportunities for the species.

Southern Garfish

In response to declining status of Southern Garfish in northern Gulf St Vincent and northern Spencer Gulf, PIRSA has worked with industry to implement the following changes:

• A further increase from a 40-day commercial Garfish fishery seasonal closure in Gulf St Vincent and Spencer Gulf to a 60-day closure in 2016. In 2017, Spencer Gulf remained at a 60-day closure and Gulf St Vincent was increased to 80-days.

• A further increase to the minimum mesh size for haul nets from 32 mm to 36 mm to allow more garfish to escape capture; and

• An increase to the garfish minimum size limit from 23 cm to 25 cm for the commercial sector to complement the mesh size change and increase the age of the fish taken.

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Snapper

On 1 December 2016, changes were made to the recreational bag limit for Snapper (between 38 cm to 60 cm in length) from 10 to 5, and boat limit from 30 to 15 for all state waters. The bag and boat limit for Snapper greater than 60 cm has remained at a bag limit of 2 and boat limit of 6 in all waters.

In response to declining status of snapper stocks in some areas of the state and latest scientific information, PIRSA worked with industry to implement a range of snapper management since the last assessment including:

• In the Spencer Gulf and West Coast region a maximum daily commercial catch limit of 200 kg and a total possession limit of 400 kg per vessel per fishing trip.

• In the Gulf St. Vincent region, a maximum daily commercial catch limit of 350 kg and a total possession limit of 700 kg per vessel per fishing trip.

• In the South East region (Sustainable stock), a maximum daily commercial catch limit of 350 kg and a possession limit of 1050 kg per vessel per fishing trip.

• From December 2016 commercial licence holders are prohibited from the use of longlines, during Gazetted public holiday weekends and are only permitted the take of snapper by handline.

• A maximum limit of 200 hooks by commercial longline operators inside the gulfs and 400 hooks outside the gulfs,

• A prohibition on taking Snapper by net and traps and transferring Snapper to any other vessel whilst at sea.

Seven spatial fishing closures in Spencer Gulf and Gulf St Vincent apply to both commercial and recreational fishers (Figure 1). These are:

• Spatial fishing closures in Spencer Gulf prohibiting fishing activity and possession of snapper inside four areas for 12 months, effective from 15 December 2018. These sites include the Estelle Star, Jurassic Park, Santa Anna and Illusion.

• An additional spatial fishing closure in Spencer Gulf at Point Lowly prohibiting fishing activity for Snapper, but allowing for the possession of Snapper for 12 months, effective from 15 December 2018.

• Two spatial closures at Tapley Shoal and an area off Sellicks , prohibiting fishing activity for Snapper, but allowing for the possession of Snapper from midday on 15 December 2018 to 31 March 2019.

• Revised charter boat fishing management arrangements related to daily catch limits State-wide.

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Figure 1: Map showing spatial snapper closures

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Following planned cross-sectorial discussion and public consultation the South Australian Government will consider Snapper further management changes before the next Snapper spawning season.

Giant Australian Cuttlefish

PIRSA continued a temporary spatial closure for the targeting and take of Giant Australian Cuttlefish in northern Spencer Gulf in 2016, 2017 and 2018. These arrangements continue in 2019.

School and Gummy Shark

PIRSA reduced the combined total by-catch boat limit for commercial fishers to five Gummy and/or School Shark, with a multi-day possession limit of a combined ten Gummy and School Shark.

Vongole

In 2017, PIRSA implemented the following management arrangements related to the Vongole fishery, effective 1 July 2017:

• Registered Masters: Licence holders with a Vongole quota entitlement are able to register an alternative master on the licence for the purpose of taking Vongole quota.

• A daily limit of 10 kg of Vongole or cockles was implemented for areas outside quota zones to prohibit the unrestricted take of Vongole in these areas.

• Minimum Legal Length (MLL): A universal minimum legal length (MLL) of >3 cm for all species of Vongole and , except yellow (Katelysia rhytiphora) and white (Katelysia peronii) taken by a licenced person from the Coffin Bay Vongole fishing zone where a MLL of >3.5 cm applies.

Target stock status

SARDI provide an annual report of the dynamics of the MSF assigning stock status of 21 species or taxonomic groups across 33 management units harvested in the fishery. The most recent report assesses the fishery in 2017 (Steer et al. 2018).

Total catch of all marine scalefish species has been fairly stable over the past five years, however the catch of primary species (Snapper, King George Whiting and Southern Garfish) has decreased in that period, while other species have shown increasing catch trends (Figure 2).

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Statewide catch of Snapper has declined from 1,035 tonnes in 2010 to 339 tonnes in 2017. Statewide catch of Southern Garfish was 184 tonnes in 2017 and there has been a long-term declining trend in total commercial catch of King George Whiting declining from 776 tonnes in 1992 to 245 tonnes in 2017 (Steer et al. 2018).

Figure 2: Catch trends for the commercial Marine Scalefish Fishery. From Steer et al. 2018.

Of the 33 stocks assessed, 28 stocks are classified as ‘sustainable’ three were classified as ‘depleted’, one classified as ‘recovering’ and one classified as ‘undefined’ (Table 2).

PIRSA has implemented a range of management arrangements in response to fisheries defined as ’depleted’ including:

• Fishery closure (Port River Vongole),

• Spatial closures, commercial trip limits, recreational bag and boat limits, gear restrictions and spawning season closures (Snapper); and

• Gear restrictions and spatial closures etc (Garfish).

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Table 2: Stock status for key MSF species. From Steer et al (2018).

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Interactions with protected species

Licence holders from all South Australian commercial fisheries, including MSF, complete a wildlife interaction logbook each time an interaction occurs with a threatened, endangered or protected species and provide the returns to SARDI Aquatic Sciences with their monthly catch logbook returns. SARDI assess and report on these interactions annually. Interactions include capture, entanglement and collision.

The most recent report (Mackay 2018) provides data up from 2007/08 to 2016/17 and indicates low levels of interactions since around 2010 (Figure 3). In 2016/17 the MSF reported three interactions, all involving white sharks with one mortality reported.

Figure 3: Number of individuals by taxa reported in MSF between 2007/08 and 2016/17. From Mackay (2018).

PIRSA has introduced management arrangements to monitor the use of large mesh nets, which may include fishery area closures if effort levels in marine fisheries areas are breach triggers. These arrangements have been implemented to address risk of Australian Sea Lions interacting with the Marine Scalefish Fishery. No breaches of these trigger limits have occurred since implementation.

By-product and by-catch stock status

As there are over 60 permitted species in the MSF. There are a wide range of species that may be considered as 'by-product' and retained. Stock status is assessed for the key by- product species (Steer et al. 2018) and at present, there are no sustainability concerns for any species considered to be by-product.

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By-catch includes:

• undersized fish

• legal sized fish that are legislatively required to be returned to the water, e.g. non- permitted species or fish that are caught during closed seasons or in closed areas

• unwanted catch (marketing reasons) such as Weeping Toadfish

The ecological impacts associated with the by-catch in the fishery were identified through an ecologically sustainable development (ESD) risk assessment (PIRSA 2011) which assessed the risk to by-catch species as negligible. Given the reduction in catch and effort in the fishery since this time, it is unlikely that this risk would have increased.

External influences

An ecologically sustainable development (ESD) risk assessment of the MSF was conducted by PIRSA in 2011. The outcomes of this assessment identified medium risk of the following environmental factors: removal of/or damage to organisms by fishing, addition of introduced marine pests and aquatic diseases. Strategies related to these risks were adopted in the MSF Management Plan and will be assessed during the review against identified performance indicators.

There are not considered to be significant changes to environmental issues of relevance to the MSF since 2016, although environmental factors are likely to have influenced Snapper recruitment (Steer et al. 2018).

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Recommendations and Conditions No Recommendations Actions Progress PIRSA to advise the Department of the Environment and Energy of: a) any proposed changes to management arrangements for smooth hammerhead sharks (S.zygaena) The implementation of management changes to reduce the effort and take of R1 b) any changes to harvest levels of S.zygaena, particularly Snapper and School and Gummy Shark would reduce the effort and take of Ongoing following the NDF review in 2017 hammerhead sharks in SA and any additional CITES or EPBC Act listed c) any additional CITES or EPBC Act listed species being, likely species. to be, or able to be, harvested in the fishery The Department is to be advised prior to such changes being implemented. PIRSA to continue to work with industry to develop and implement PIRSA currently has a number of FRDC projects that are supporting a statistically robust monitoring and reporting regime for the independent assessment of key species (Snapper, King George Whiting and R2 fishery that will collect sufficient data to allow evaluation of the Garfish) and improve the estimates of the recreational and indigenous fishing Ongoing effectiveness of the fishery’s management measures. sectors. PIRSA is also in the process of trialing electronic reporting in the MSF. No Conditions Actions PIRSA to: a) maintain management measures directed toward reducing and managing the impact of fishing activity on Australian sea lions In 2016, PIRSA implemented management arrangements measures directed at managing the impact of fishing activity on Australian Sea lions. For 2016 b) continue to monitor and review the adequacy of its Australian C1 and 2017 no fishing with large mesh nets occurred in high risk areas and only sea lion interaction mitigation management measures, in a small number of fishers used large mesh nets in the low risk area. Given Achieved consultation with relevant stakeholders this, no triggers were breached. PIRSA is continuing to monitor the use of c) include an effort report within the annual reports, outlining effort large mesh nets. using large mesh nets, particularly in ‘high risk blocks’ of the fishery.

No Conditions Actions Progress Operation of the fishery will be carried out in accordance with the management regime under the SA Fisheries Management Act The fishery has been carried out in accordance with the relevant C1 2007, the Fisheries Management (Marine Scalefish Fisheries) Ongoing management regime. Regulations 2006 and the Fisheries Management (General) Regulations 2007.

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PIRSA to inform the Department of the Environment and Energy of any intended material changes to the SA Marine Scalefish PIRSA has informed DotEE of all material changes to management C2 Fishery management arrangements that may affect the Achieved arrangements in the MSF assessment against which Environment Protection and Biodiversity Conservation Act 1999 decisions are made. PIRSA to produce and present reports to the Department of the PIRSA has provided DotEE with Annual reports to the DotEE as per Appendix Environment and Energy annually as per Appendix B of the C3 B of the Guidelines for the Ecologically Sustainable Management of Fisheries - Guidelines for the Ecologically Sustainable Management of Achieved 2nd Edition (the Guidelines). Fisheries - 2nd Edition (the Guidelines). a) Assessment reports for the South Australian Marine Scalefish Fishery in 2016 and 2017 are available on the SARDI website at: http://www.pir.sa.gov.au/__data/assets/pdf_file/0013/310054/Assessment_of _the_South_Australian_Marine_Scalefish_Fishery_in_2016.pdf and Following the updated scientific assessments of stock levels for http://www.pir.sa.gov.au/__data/assets/pdf_file/0010/336916/Assessment_of snapper, King George whiting and garfish (expected in 2016, 2017 _the_South_Australian_Marine_Scalefish_Fishery_in_2017._Report_to_PIR and 2018 respectively) and in response to findings in those SA_Fisheries_and_Aquaculture.pdf assessments, PIRSA to: b) Management arrangements in relation to rebuilding of Snapper, King a) ensure findings of the updated scientific assessments are George Whiting and Garfish are publically available at publicly available, and include an evaluation of the success of http://www.pir.sa.gov.au/fishing/commercial_fishing/fisheries_management/n changes to management arrangements implemented since the last otices C4 Achieved fishery assessments http://www.pir.sa.gov.au/fishing/closures_and_aquatic_reserves/fishing_closu b) finalise, publicly release and implement recovery res/snapper_closures strategies to rebuild primary species stocks to ecologically viable http://www.pir.sa.gov.au/__data/assets/pdf_file/0009/284256/king_george_w levels, within a specific time period, appropriate to the biology of the stocks hiting_spawning_spatial_closure_20161109.pdf c) continue to ensure that stock levels of these species are The MSF Management Plan also contains a harvest strategy aimed at well understood. rebuilding the Garfish stock. See http://www.pir.sa.gov.au/__data/assets/pdf_file/0014/12920/Final_Commercia l_MSF_Management_Plan_2013.pdf c) PIRSA currently has a number of FRDC projects that will increase our understanding of key species (Snapper, King George Whiting and Garfish) and improve the estimates of the recreational and indigenous fishing sectors. PIRSA is also in the process of trialing electronic reporting in the MSF.

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References

Econsearch (2018) Economic Indicators for the South Australian Marine Scalefish Fishery 2016/17. A report to PIRSA Fisheries and Aquaculture. Adelaide. South Australia.

Giri K and Hall K (2015) South Australian Recreational Fishing Survey. Fisheries Victoria Internal Report Series No. 62.

Mackay, A.I. (2018). Operational Interactions with Threatened, Endangered or Protected Species in South Australian Managed Fisheries Data Summary: 2007/08 - 2016/17. Report to PIRSA Fisheries and Aquaculture. South Australian Research and Development Institute (Aquatic Sciences), Adelaide. SARDI Publication No. F2009/000544-8. SARDI Research Report Series No. 981. 72pp.

PIRSA (2011). Ecologically Sustainable Development (ESD) risk assessment of the South Australian Commercial Marine Scalefish Fishery

PIRSA (2013). Management Plan for the South Australian Commercial Marine Scalefish Fishery. The South Australian Fisheries Management Series Paper Number 59.

Steer, M.A., Fowler, A.J., McGarvey, R., Feenstra, J., Smart, J., Rogers, P.J., Earl, J., Beckmann, C., Drew, M. and Matthews, J. (2018). Assessment of the South Australian Marine Scalefish Fishery in 2017. Report to PIRSA Fisheries and Aquaculture . South Australian Research and Development Institute (Aquatic Sciences), Adelaide. SARDI Publication No. F2017/000427-2. SARDI Research Report Series No. 1002. 230pp.

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Appendices

Appendix A – Categories of Marine Scalefish

Primary • King George Whiting (Sillaginodes punctata) • Snapper (Chrysophrys auratus) • Southern Sea Garfish (Hyporhamphus melanochir) • Southern Calamari (Sepioteuthis australis) 2. Secondary: • Yellowfin Whiting ( schomburgkii) • Australian Salmon (western species: Arripis truttacea; eastern species: A. trutta), • Australian Herring (Arripis georgianus) • Mud Cockles (Katelysia spp.) • Snook (Sphyraena novaehollandiae) • Sand Crabs(Ovalipes australiensis) • Yellow-eye Mullet (Aldrichetta forsteri) • Mulloway (Argyrosomus japonicus) • Bronze and Dusky Whalers (Carcharhinus spp.) • Jackets (Nelusetta ayraudii), 3. Tertiary • Parrotfish (Family Scaridae) • Trevally (Pseudocaranx dentex) • Gummy Shark (Mustelus antarticus) • Rays and skates • Cuttlefish (Sepia spp).

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