Sustainable industry growth plan for the salmon industry
Department of Primary Industries, Parks, Water and Environment A message from the Minister
The Hodgman Liberal Government The consultation highlighted that the great is a strong supporter of the majority of those who participated wish to salmon industry. see the industry continue to grow, provided it operates in a genuinely sustainable way. Opinions We acknowledge its important contribution to naturally vary on how this can be achieved, but the State, especially in terms of jobs in our regions, after considering the full range of views we believe and welcome the prospect of further sustainable this Plan strikes a balance and lays out a practical growth. This Plan represents the Government’s way forward for an industry that will have the vision and priorities for the future of the highest standards of biosecurity, fish health and industry and the value it brings to the Tasmanian environmental management. The consultation community. report indicates how we have responded to the main points raised. In the past 18 months the Government has developed and introduced the most substantial The Plan is a living document, reflecting reforms to the regulation of the industry in at continuous improvement. We will review the least 15 years. The changes included transferring Plan after one year, and thereafter every two responsibility for environmental regulation to the years. (Information on the progress of the independent Environment Protection Authority, Plan will continue to be available at introducing increased penalties that will have www.dpipwe.tas.gov.au/salmonplan .) a genuine deterrent effect, and creating a new I welcome your continued engagement in the mechanism for excluding salmon farming from sustainable future of the salmon industry. areas of the State’s coastline. And we have called a halt to the practice of long-distance relocation of seals by salmon farmers.
We have also developed this Plan, at first in a Jeremy Rockliff draft form that was exhibited for public consultation for seven weeks. This generated Deputy Premier, Minister for Primary almost 100 comments and submissions. A report Industries and Water on the consultation process, as well as all the feedback received, can be found at www.dpipwe.tas.gov.au/salmonplan . Openness and transparency has been a key part of this process and I sincerely thank all those who have been a part of what has been a highly valuable process.
2 Contents
A message from the Minister 2 Executive summary 4 Snapshot of the industry today 6 Vision for the industry in 2030 8 The planning and approval process that will apply to any new farming areas 10 Proposed “grow” and “no grow” zones for finfish in Tasmania 12 Explaining the map 14 Maintaining public confidence in the salmon industry 16 Improving environmental regulation, and biosecurity 20 Supporting industry growth 22
What the Government has already done to support a sustainable salmon industry
We provided additional funding to the new Aquatic Animal Health and Vaccines Centre of Excellence at Mount 2014 Pleasant, and the Institute for Marine and Antarctic Studies for additional research on amoebic gill disease Significant additional funding for frontline biosecurity (ongoing funding now $1 million pa) 2015 Seafood Pledge signed, with funding for Seafood Training Tasmania over three years Important reforms to penalty / infringement notice legislation in the Marine Farming Planning Amendment Act 2016, 2016 with demerit points consequently reformed by 2017 Regulations Transfer of responsibility for environmental regulation to Environment Protection Authority (EPA) under delegation Additional ongoing funding to Aquatic Animal Health and Vaccines Centre of Excellence Decision to ban finfish farming in all of Mercury Passage outside existing Okehampton Bay zone Passage of Finfish Farming Environmental Regulation Act 2017 to formalise EPA’s role and other reforms, including process for creating finfish marine farming exclusion zones 2017 Giving Marine and Safety Tasmania a formal role in marine safety enforcement around marine farms Development of major new Biosecurity Bill 2017, including provision to approve industry biosecurity programs Renewal of Seafood Pledge for up to a further three years, with increased funding available for training Requirement to end long-distance seal relocation by Christmas 2017, and to review and amend the Seal Management Framework
A sustainable industry growth plan for the salmon industry 3 Executive summary
Starting from scratch, it has seen for ensuring strong environmental The salmon the creation of an estimated 5,200 performance. So the Government’s jobs (including related industries and role in the future of the industry is to industry has been flow-on impacts) that are largely in partner constructively with industry one of the great regional areas; become an industry and the community to create the that generates sales revenue of $726 right environment for growth through Tasmanian million; and has become integral to the two mechanisms: first, ensuring that success stories fine food component of the Tasmanian access to public natural resources is brand. To ensure ongoing sustainable on terms that encourage the industry of the past 30 growth, and the benefits that flow to to meet world’s best standards of communities as a result, the Tasmanian sustainable farming practices, research, years. Government is setting the blueprint development and innovation, and for future development, environmental effective biosecurity; and second, regulation and increased community facilitating a robust, appropriately confidence. resourced and independent planning and regulatory system. The Government is the custodian of the public natural resources that the industry uses and is responsible
Our vision is for the industry to:
• continue to deliver increased tangible benefits to Tasmania through sustainable growth – delivering more and better jobs and economic growth (especially in the regions), and acting as a driver of productivity and innovation in the State’s economy;
• remain an industry Tasmanians are proud of and have confidence in, by increasing transparency and industry accountability for environmental management, and by the introduction of a clear and robust mechanism for expansion; and
• be the most environmentally sustainable salmon industry in the world by continuing to improve environmental performance through industry driven innovation, coupled with appropriate environmental monitoring and regulation.
4 The Government believes there are three essential elements to achieving this vision. The top priority actions under each heading are:
Maintaining public confidence in the salmon industry
• Clearly identifying the areas of Tasmania’s coastal waters where salmon will continue to be farmed, areas where further growth might be possible (subject always to careful and open planning and approval processes), and areas where salmon farming will be excluded • A commitment to future expansion moving into oceanic (deeper and high-energy) waters, rather than estuarine waters • Analysis of existing marine farming development plan areas used for salmon farming, particularly with a view to strengthening biosecurity • A competitive tender process for access to any proposed new and untried farming areas, with criteria for success to be determined by government • A formal agreement, jointly developed by all current finfish licence holders and the Government, for sustainable future farming in Macquarie Harbour • Development of a “Tasmanian Salmon Industry Scorecard” that benchmarks the industry against international best practice, as applicable in the Tasmanian context, and is regularly reviewed and updated
Improving the efficiency, effectiveness and transparency of the industry’s environmental regulation, and the effectiveness of its biosecurity systems
• Establishment of an industry funded Finfish Farming (Compliance and Monitoring) Unit in the Environment Protection Authority • Development of an industry-wide Biosecurity Program that can be given effect through the proposed new Biosecurity Act • Collection of a wider range of environmental information, including additional real time data, and increased public access to relevant environmental information through an independent portal hosted by the Institute for Marine and Antarctic Studies • Continuing strong support for the State’s advanced fish health and biosecurity facilities • Encouraging relevant research and development, and the subsequent adoption of new technologies that reduce environmental impacts
Supporting industry growth
• Strong support for the industry’s sustainable growth, to maximise the industry’s contribution to the State by 2030 • Continued support for cooperative research, development and innovation through the supply chain • Marketing and export development support linked to Tasmanian brand development • Further investment in developing the skills and career paths the industry needs • Establishment of a broad-based industry body as to oversee the Plan’s implementation and meeting relevant milestones
A sustainable industry growth plan for the salmon industry 5 Snapshot of the industry today
It is not only the largest primary industry in the State, The salmon industry with increasing gross revenue that reached $726 million in 2016-17, but also the nation’s largest seafood product has been one of the by volume. most important Salmon farming in Tasmania is mainly companies, and the flow-on impacts growth sectors in undertaken by three large, vertically into the broader community are Tasmania over the integrated companies that grow fish significant. There is now a thriving from eggs to harvest and value add ancillary sector providing inputs to past 30 years, and to a final product. All three started in the industry such as vessels, cages, a global innovator. Tasmania and remain based here. nets and feed, training, transport and logistics, and a range of contract and Industry estimates the jobs created consultancy services. through salmon farming to be in the order of 5,200, including around The wages of those employed as a 1,600 jobs directly with the three direct result of the industry or ancillary companies. In its submission to the sector drive local businesses, creating 2015 Senate Committee Inquiry, the further employment in local retailers. industry estimated there were about They also underpin the viability of 3,770 further full-time equivalent (FTE) communities including services such as jobs generated in both Tasmania and schools and medical facilities. the rest of Australia (section 7.18, Further, the industry has been and will Report into Regulation of the Fin- remain a significant capital investor in fish Aquaculture Industry in Tasmania infrastructure such as hatcheries, shore (August 2015) by the Senate’s facilities, pens, boats, processing plants Environment and Communications and so on, providing work for multiple References Committee). other businesses and tradespeople. The positive impact of the industry Current expansion plans mean further on the economy spreads well beyond capital expenditure is in the pipeline. direct employment with the salmon
6 Tasmania’s 5 Highest Value Agri-food Commodities Gross Value at Farm gate or Beach Tasmania’s highest value agrifood commodities 800 Gross value at farm-gate or beach
700
600
500 D U A
n 400 o i l l i m
$ 300
200
100
0 2012-13 2013-14 2014-15 2015-16 2016-17*
Salmon Dairy Beef Potatoes Wool
*data r dair ee tat e and l n t et a aila le.
Tasmanian salmon industry direct employment and production Tasmanian salmon industry direct employment and production 60000 1800
1600 50000 1400
40000 1200
1000 30000 800
20000 600
400 10000 200
0 0
2002-03 2003-04 2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17
Production (tonnes) LHS Tasmanian employees (FTE) RHS
A sustainable industry growth plan for the salmon industry 7 Vision for the industry in 2030
The Government agrees with this statement and supports “It is the the industry’s growth as long as it operates to the high standards and expectations outlined in this Plan. committee’s view The vision is therefore for a successful, indirectly through increased economic that the success larger industry with excellent regulation activity in regional communities. and minimised environmental impacts. of the fin-fish This potential expansion is an exciting aquaculture In 2009 the salmon industry set a opportunity to help ensure that the target to double to a $1 billion a year Tasmania of 2030 will have prosperous industry is industry by 2030, which has been regions and good jobs for a growing supported by government. It is now population. The industry has to take inextricably widely recognised that this target is the lead, invest and innovate. The linked to the conservative as the industry has been Government can help realise the tracking well ahead of the growth potential through undertaking the future economic required to achieve it. actions outlined in this Plan. Each of the three essential elements is critical to prosperity of Industry growth of this nature, aligned success. Tasmania.” to the high standards of the Plan, will result in significant economic benefits Section 7.40, Report into Regulation of to Tasmania, including jobs growth, both the fin-fish aquaculture industry in Tasmania directly related to the industry and (August 2015) by the Senate’s Environment and Communications References Committee.
8 The growth of the ancillary product range and intellectual property But most operations are Tasmanian in sector has been a striking (IP), including by partnering with world- origin and ownership. class scientific institutions such as IMAS feature of the salmon The overall result is that the ancillary and CSIRO Marine and Atmosphere. industry’s recent history. sector has become an independent It has developed some unique solutions generator of valuable IP and economic Current estimates suggest that this and products, which have then found activity. And this is not only in the sector already accounts for about markets in other parts of the world. traditional locations for salmon three-quarters as many FTE jobs as the Some companies are starting to become production. So though farming employs salmon companies themselves and its significant exporters in their own right, people mainly in the regions there is employment is projected to continue its including in areas outside the salmon also a growing number of jobs in greater rapid increase. industry itself, with products such Hobart, where already there are about The ancillary sector provides both as recirculating aquaculture systems, 800 FTE jobs in the sector – half as many physical inputs – feed, cages, boats specialised vessels, and feed control as the total employed by the farming and many sophisticated engineered software for the prawn industry. companies. Like those companies, the sector has attracted new talent and components – and services, including Some companies are subsidiaries retained talent that might otherwise specialised transport, training, logistics, of major multinationals, eg in feed have left the State. Its further growth is and software. Importantly, as the scale manufacture, but they have nonetheless a real opportunity to lock in smart and of the Tasmanian salmon production has focussed on developing products rewarding employment, as well as to increased, the ancillary sector has been uniquely suited to Tasmania and that use generate valuable export income. able to achieve critical mass to expand its as many Tasmanian ingredients as possible.
A sustainable industry growth plan for the salmon industry 9 The planning and approval process that will apply to any new farming areas
The blue and green zones on the map indicate areas within The map clearly which farming might occur, subject to the comprehensive planning process outlined below. shows where salmon farming The changes recently made through the Finfish Farming Environmental Regulation Act have significantly strengthened the planning, leasing and licensing may currently take framework. This framework, plus any changes necessary to accommodate a new place (amber), competitive tender process for the blue zones, will be used to guide any proposed development. where it might go The elements of the planning process: There are several levels, set out in in the future (green legislation. Each needs to be in place before a marine farm can operate. and blue) and • The key pieces of State legislation are the Marine Farming Planning Act 1995 (MFPA), the Environmental Management and Pollution Control Act 1994 also, importantly, (EMPCA) and the Living Marine Resources Management Act 1995 (LMRMA). where it will be • The primary decision makers are the Minister for Primary Industries and Water, the Secretary of the Department of Primary Industries, Parks, Water banned (red). Most and Environment, and the Environment Protection Authority (EPA) Board and of Tasmania’s Director. A critical advisory role in planning is played by the Marine Farming Planning Review Panel (the Panel). coastline will be • The MFPA establishes the planning framework: closed to salmon • The overarching elements are new or amended marine farming development plans (MFDPs). There are currently 14 approved MFDPs. farming. • These cover specified areas and containmarine farming zones (MFZs) – each of which can be specified as suitable for certain activities. The commercially relevant types of farming currently allowed are for finfish, shellfish or seaweed. The potential uses reflect the environmental assessment of the sites, which underpins the planning process. • Each MFZ has an identifiedmaximum leasable area (which may be in more than one portion). • The MFZs usually only make up a small fraction of the total area covered by an MFDP; the maximum leasable areas in turn make up a portion of each MFZ. How MFDPs are made or significantly amended:The statutory process for preparing or amending an MFDP is overseen by the Panel. Section 21(1) of the MFPA sets out what the Panel must do when considering proposals, including: (d) have regard for the use and development of the region as an entity in environmental, economic, recreational and social terms; and [ … ] (f) have regard to the biological and physical requirements of fish species to be farmed in that area;
10 At the end of this process, the Panel makes a recommendation to the Minister. If the Minister agrees, and an approved MFDP covering finfish is issued, it must include any environmental management controls that the Director EPA specifies. The critical step is the development and release of an Environmental Impact Before marine farming operations Statement (EIS) for public exhibition, accompanying the draft planning instrument begin, a proponent must apply for the new or significantly amended MFDP. The EIS and draft planning instrument for and, subject to conditions, be are open to representations and representors can require public hearings. granted both a lease (under the The EIS must be prepared in accordance with guidelines, which have input from MFPA) and a marine farming licence the Panel and include any requirements of the EPA. The Government will release (under the LMRMA). a template for EIS guidelines. In addition, because of the changes The EIS guidelines vary a little according to location but have a comprehensive set the Government has recently made of core matters that are to be addressed. An EIS for a proposal must identify and to strengthen the system, a finfish describe all of these matters, then explain any possible impacts and all proposed proponent will now require an mitigation measures. Where appropriate, the mitigation measures are embodied in Environmental Licence (EL) under the draft “management controls” of the new or amended MFDP. The issues to be EMPCA. It will include site-specific covered include, among other things: environmental management elements determined by the Director EPA and • Operational matters – all the practical issues around installing and operating prescribed in the EL. the proposed farms; this explicitly includes relevant biosecurity protocols. A proponent may also need to • Environmental – everything relating to the water and the seafloor, including all consider their intended activity in living things (plants, fish, birds, mammals); threatened communities or species; relation to the Commonwealth hydrology, water quality and chemistry; disturbance by noise and nocturnal Environment Protection and Biodiversity light; and predicted climate change effects. Under the amended legislation the Conservation Act 1999, and potentially Director EPA may require any matters to be addressed in the planning process. have their proposal assessed under • Economic – covers industries in the region, specifically including all sorts of that Act. tourism operations: land based (accommodation, restaurants, cafes, bars and other food outlets, cultural heritage, lookouts, walks and treks); and marine- based (eg. wildlife spotting, boat cruises, seaplane flights, SCUBA diving, sea kayaking, water skiing, surfing). How can you have your say in the • Commercial and recreational fishing are highlighted and the EIS must report planning process? on consultation with stakeholders of both sectors; the environmental issues around impacts on fish habitat are of course critical here also. This is reflected 1) You can engage with a in the longstanding prohibition of salmon farming over hard bottom, and the proponent in their initial current practice of surveying nearby reefs. Issues such as seawater intakes for community consultation land-based aquaculture will also be covered. about a future proposal • The socio-economic considerations include such matters as effects on: local 2) You can be a part of the and state labour markets; upstream / downstream industries; land values, and broader stakeholder demand for land and housing; and the local, national and state economies. Visual feedback process in the amenity is specifically required to be addressed. development of an EIS 3) You can make a representation during the public exhibition of the EIS - including request a public hearing 4) You can attend any public hearings that are held
A sustainable industry growth plan for the salmon industry 11 Proposed “grow” and “no grow” zones for finfish in Tasmania
No Grow Zones ! Active Finfish Zone Existing Finfish Farming Area
Inactive Finfish Zone Currently under Exploration Potential for Further Release
!
Enlargement C
! See Enlargement C
Enlargement B See Enlargement B ! !! ! ! !! !! ! !! ! ! ! ! ! ! ! ! See Enlargement D ! ! !
See Enlargement E
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! ! See Enlargement A ! ! ! ! !!! ! ! !! ! ! !! ! ! ! ! ! ! ! ! Enlargement D ! ! ! ! ! ! !! ! ! ! ! ! ! ! ! ! ! ! ! ! ! !
! ! ! ! ! Enlargement E !
! ! ! ! ! ! ! ! ! !
0 10 20 30 40 50 100 kilometres Planning proposals !!! ! out for public !
! exhibition ! ! 0 5 10 kms 0 10 20 kms ! Enlargement A www.tasmap.tas.gov.au the LIST © State of Tasmania
Version 19 Explaining the map
What the green “currently under exploration” shading What the blue “potential means for further release” shading means At the moment, exploratory work is under way in the four green zones. In three of them it is authorised by time-limited permits granted under the Living Marine These are waters where the Resources Management Act 1995. In Storm Bay the proposals are now moving Government considers future through the statutory planning stage. expansion may be possible, and should not be precluded. There is no The permits allow the companies involved to conduct environmental investigation implication that all, or even any, of these and monitoring within the permit areas. The permits are often granted over areas will necessarily end up containing large areas, even when the focus is on smaller, specific locations. This is because salmon farms. understanding the environmental and other conditions of the target locations may require understanding the wider systems of which they are part. The three If salmon farming is to occur in the areas are: blue zones, a new competitive tender process will be required (only for • East of Cape Connella, South Bruny: Huon Aquaculture Company has a permit these waters) that will take account covering a large area and is focussed on investigating the potential of three of legitimate stakeholder concerns, specific areas, one of which is about 6 km offshore. maximise the community benefit • Far North-West: Petuna has a permit that covers a large area but, as the map and still maintain the safeguards of indicates, its focus is on the deeper water shaded green. the current legislative processes. It is • King Island: Tassal has a permit to investigate an area off part of the island’s east outlined on page 17. coast. The defining characteristic of this If the work under the initial permits proves promising, subsequent permits may proposal is that a new Tender Advisory be granted to the companies to allow them to trial their technology at specified Board will decide which waters within locations. Before such permits are issued the interests of key stakeholders, including the blue areas will be put out for both commercial and recreational fishers, will be considered. tender, and when this might occur. Government and industry hope this work will identify some areas within the green Once the tender is open, any person zones as potentially suitable for salmon farming. If so, the proponent will then need or entity wishing to test the suitability to undertake the full planning process outlined above. of waters in the blue zones will need to make a proposal that meets criteria set by government. And while the In Storm Bay, all three major companies have current proposals. Two proponent of a successful assessment of them (Tassal’s “West of Wedge” and Huon Aquaculture Company’s will have a priority in future planning, off Trumpeter Bay) are seeking amendments of existing MFDPs. Both allocation and licensing processes, those companies have recently had their proposals, and accompanying EISs, processes will still need to be carried released for public exhibition. The third proposal, by Petuna, is for a new through in full, and will incorporate MFDP and is being prepared for public exhibition. means of holding the original proponent to any commitments they may have made.
14 What the red “no grow zone” shading means The difference between the “active” and “inactive” The mechanism to establish “no grow zones” is now set in legislation, through finfish zones amendments introduced by the Finfish Farming Environmental Regulation Act 2017. At this time, only the Mercury Passage no grow zone has been legislated. Salmon MFDPs specify what type of marine farming is banned in these zones. Only Parliament can make new ones, or change farming activity can occur within each existing ones. This process cannot be exercised by the Government alone. MFZ. The map identifies as “finfish zones” all MFZs that currently allow The map indicates that the proposed no grow zones include two types of water: for the marine farming of finfish. Many • Areas covered by existing MFDPs that do not include any zones permitting of these also allow for the farming of finfish farming; these are generally MFDPs devoted to shellfish culture (Pitt shellfish and seaweed. Water, Pipeclay Lagoon, Blackman Bay, most of Great Oyster Bay and Mercury The distinction in the map between Passage, Georges Bay, Port Sorell and the existing MFDP for some inshore “active” and “inactive” has been areas of the far North West); modified since the issue of the Draft • Areas not previously subject to any marine farming planning processes. The Plan. It is now based on identifying majority consists of two continuous strips covering (a) the Southwest and as active all finfish zones where not West Coast, and (b) most of the East Coast and the North Coast. The eastern only have marine farming leases been side of the Furneaux Group and the west coast of King Island have now been allocated, but also where a licence to added (they were “potential for further release” in the Draft Plan). There are farm finfish has been obtained. also three areas deliberately highlighted for exclusion from neighbouring blue These are shown on the map as blue zones – Adventure Bay on Bruny Island, and two areas protecting reefs in the dots ( • ). The inactive are shown as blue zone south and west of Bruny Island. black circles ( ° ). This change has materially reduced the number of What the amber “existing finfish farming areas” means finfish zones shown as active.
The amber shading applies to the full area covered by any marine farming The active category therefore now development plan (MFDP) that includes one or more marine farming zones identifies all finfish zones where (MFZs) where, under that MFDP, finfish can be farmed. There is one exception: the finfish farming could occur without area of the Great Oyster Bay and Mercury Passage MFDP. The only MFZ in this further approvals, except where finfish very extensive plan area that allows for finfish farming is Zone 4 Okehampton Bay; farming has not occurred for more that is already surrounded by the Mercury Passage exclusion zone, so to show the than 10 years (in which case a new remainder as amber would be misleading. environmental assessment would be required under the amended EMPCA). Every MFDP contains one or more MFZs zoned for any or all of finfish, shellfish and seaweed. Finfish can include a range of species, such as flounder or yellowtail kingfish, as well as salmonids. In the Furneaux plan it was the possibility of farming yellowtail kingfish that led to 10 zones there being specified for finfish. So, apart from in the Great Oyster Bay and Mercury Passage MFDP, all areas covered by MFDPs that include any MFZ specified for finfish are shaded amber, even where most of the area would never be considered suitable for finfish farming.
A sustainable industry growth plan for the salmon industry 15 Maintaining public confidence in the salmon industry
The preceding map, with its accompanying explanation, As the industry is a crucial step in this direction.
grows, the public The system for planning and allocating marine water has been seen as a global must have model, well suited to a phase of rapid growth from a low base, but after 22 years it needs to be refreshed to address new circumstances and the challenges confidence in of sustainable growth for a mature industry. Important steps have already been the regulation taken but the Government believes that more needs to be done, including, where necessary, changes to the existing legislation. of its use of public resources. Grow and No-Grow Zones The mechanisms that will implement the new “grow” and “no-grow” zones have described above. The selection of the grow and no grow zones in this Plan was achieved by carefully weighing up three important considerations: • Firstly, by obtaining and incorporating advice across government and industry about the areas where marine farming would be suitable or not suitable, for basic biophysical and environmental reasons; • Secondly, by talking to the industry about its plans, and the waters where it considers it needs to go in order to achieve sustainable growth with good environmental and biosecurity outcomes; and • Thirdly, by listening to the concerns of the community about where they felt that marine farming was not appropriate, for reasons of amenity and alternative uses. The Plan has taken a cautious approach to growth. Further, if the planning process reveals that an area of interest is not suitable or viable, the proposal will not proceed.
Committing to future industry expansion being largely oceanic, rather than estuarine
Over the next decade and beyond the from farming in estuarine zones but industry expects to see an increasing most investment is now going into the use of recirculating aquaculture systems development of systems that allow farming to grow bigger fish on land, prior to in oceanic locations. These will be more their transfer into seawater. However, to difficult to farm but despite the challenges, What does “oceanic” achieve its sustainable growth potential the research indicates that such sites have mean in this Plan? industry will also need additional oceanic strong potential to produce healthy fish farming sites for its marine phase, the final and a smaller environmental impact. The Oceanic sites are exposed grow out stage of the salmon life cycle. State’s planning and approval processes deep water marine sites will ensure that investigations and potential that experience high wave This oceanic water will be in contrast future farming occur carefully and energy and good current to the relatively shallow inshore waters sustainably. The Government supports flows. where the industry became established. proposals to allow States to regulate Technological advances, such as waste marine farming outside State waters. capture, continue to improve outcomes
16 A competitive tender furthers the Government’s underlying investments (such as transport process for access to any objectives of encouraging best practice hubs, hatcheries or processing new farming areas (the in sustainable farming and in research, capacity); and financial benefit to “Potential for further development and innovation. Tasmania. release” areas), with Advice on the tenders for particular Successful tenderers will gain criteria for success to be areas of water will be provided by a temporary exclusive right to determined by government a legislated Tender Advisory Board. “prove” part or all of the relevant The Government will establish a new Tenders will be assessed with a view areas of water (similar to an process for testing the suitability of to maximising community benefit and exploration licence under mining salmon farming within the identified amenity. legislation) and to do the relevant studies and potential impact areas, through an open competitive The Government will set the criteria assessments. The planning process tender process. The proposal is – environmental, social and economic and the final steps of leasing and outlined below. It will require some – and ensure that equity is achieved licensing will largely follow the changes to legislation, which will take and monopoly avoided. Criteria may current model but they will include time to complete as the legislation is include (but not be limited to) effective a clear preference for successful complex and involves many interrelated commitments to, for instance, research; tenderers, provided they have elements. The target date is June 2018. environmental performance; biosecurity delivered on commitments made in improvements; employment; associated The intent is to ensure that growth the tender process.
Proposed pathway for testing, planning and allocating new water for finfish farming
Exploration of new water Planning Operations
Tender Advisory Board When ready, using data Proponent applies for lease established to advise Minister, collected under the permit including on which water to put (including for the environmental to tender* impact statement, EIS), Lease granted by Minister, proponent applies to progress subject to any condition draft marine farming specified by the Minister, for a Tender process: applicants apply development plan (MFDP), period not exceeding 30 years to undertake site suitability under current processes (administered by DPIPWE) work. Board assesses against range of social, economic, environmental and other Marine Farming Planning Proponent applies for criteria determined by Review Panel (Panel) considers operational consents: Government proposal; in the normal way • Licence under (see pages 10-11), with the Living Marine Resources exception that the additional Management Act 1995 Board must also consider commitments, such as those (administered by DPIPWE) additional commitments in made in the tender, will be • Licence under relation to (eg) employment, incorporated environmental outcomes, Environmental Management research, infrastructure and / or and Pollution Control Act 1994 payments additional to standard (administered by EPA) lease rental / licence fees Panel recommends to the Minister that the draft MFDP should be approved, including Operates in accordance with Board makes recommendation additional commitments various conditions, including on successful applicant to additional commitments Minister, who may grant exploratory marine farming If MFDP is approved, Minister permit to undertake operations invites proponent to apply for under conditions marine farming lease(s) in relevant zone(s) of MFDP
Permit accompanied by an assurance of a right of first option / first refusal to be the planning proponent*; assurance is time bound and subject to satisfactory performance against conditions and commitments
* change to legislation required
A sustainable industry growth plan for the salmon industry 17 Maintaining public confidence in the salmon industry
18 Analysis of existing marine Aspects of the Agreement could Development of a farming development plan be given statutory effect under the “Tasmanian Salmon areas used for salmon proposed new Biosecurity Act. The Industry Scorecard” farming, particularly with Government therefore commits to that will benchmark a view to strengthening bring all parties together to deliver an the industry against biosecurity agreed and workable solution by June international best practice 2018. Industry and government acknowledge Like all successful companies, the that currently farmed inshore waters major operators in the industry all are at capacity and the zone locations Adoption of a new “zero use benchmarking to measure and are not optimised for biosecurity, in tolerance” approach to help improve their performance. particular. For instance, the current marine debris and related The Government believes there is distribution of leases does not facilitate boating safety issues a larger benefit to be gained from the separation of companies and year industry-wide benchmarking that will The amount of debris from marine classes that are now accepted good show objectively how the industry farming operations has been an practice. As new offshore farming sites compares with its international peers. ongoing concern to the community. are established there is an opportunity To undertake this we will undertake Individual companies have been for industry and government to work international research and consultation undertaking regular clean-ups and together to analyse existing inshore with stakeholders to identify key supporting voluntary action. The finfish leases, to improve management benchmarks that are relevant in the Government has taken action to ensure of biosecurity and possibly operational Tasmanian context. The increasingly greater compliance and accountability. efficiency. shared adoption of international Marine and Safety Tasmania (MAST) third-party certification schemes, The expectation is that this will officers have been authorised to including the Aquaculture Stewardship primarily be an industry led analysis. monitor and respond to breaches, Council’s, creates potential efficiencies Government will consider proposals where marine farm equipment is found here. Such benchmarks will be used from industry to improve biosecurity outside of marine farm lease areas to create a scorecard that summarises by adjusting lease locations within and is causing navigational and safety the Tasmanian industry’s comparative zones or exchanging leases between risks. This has doubled the number of performance and can be regularly companies, or consolidation proposals authorised officers under the Living released. for other reasons if agreed by all Marine Resources Management Act 1995 affected parties. and will bring the total to four DPIPWE officers (who have a wider remit) and four MAST officers. Marine Police from A formal agreement, jointly the Tasmanian Police Service remain developed by all current authorised officers for all issues relating finfish licence holders to marine safety. In enforcing the zero and the Government, for tolerance approach, the Government farming sustainably in will establish deadlines for the universal Macquarie Harbour adoption of best practice tracking Currently, all companies operating in technologies and simple ways to Macquarie Harbour are signatories identify the source of debris. to an Area Management Agreement finalised in 2012. Since that time different approaches to the farming of the Harbour have emerged. With the move to the EPA as an independent environmental regulator and improved international knowledge about how best to manage biosecurity risks, it is timely to develop a new and strengthened Agreement.
A sustainable industry growth plan for the salmon industry 19 Improving environmental regulation and biosecurity
The salmon industry’s environmental performance is critical to its success – both physically and in terms of the market.
Tasmania’s environmental regulatory systems have succeeded in managing growth for 30 years, but standards continuously improve and it is time to recommit to staying abreast of the best global practices.
The Government has already taken important steps to update the State’s planning and regulatory system, such as legislating for higher penalties, placing environmental regulation with the Environment Protection Authority and strengthening its role in the planning process, and legislating to introduce a new Environmental Licence. But the planned growth ahead makes this the right time to make further practical changes.
Finfish Farming (Compliance and Monitoring) Unit
The Government’s consolidation of the in the companies’ commitment to industry’s environmental regulation into those standards, already indicated by the independent Environment Protection their voluntary third-party certification. Authority (EPA) is a major step forward. We understand the large investments The Government will now take this companies have made in environmental consolidation further by establishing monitoring infrastructure, their a Finfish Farming (Compliance and workforce and appropriate skills Monitoring) Unit in the EPA. and we don’t want to lose these The Unit will be funded by industry things. We do acknowledge though, through levies. The Unit will ensure the that the community expects more capability of the regulator keeps up effective oversight of environmental with the industry’s growth, and ensure monitoring. This change will deliver that that farmers perform to the standards oversight, with the Finfish Farming Unit they have committed to. This will undertaking observation and audits of reinforce public and market confidence environmental monitoring practices. 20 Development of an Increased range and experimental waste capture systems industry-wide Biosecurity improved transparency of (particularly in shallow or sensitive Program environmental information areas), net cleaning techniques, and reduction of wildlife interactions. The salmon farming companies The greatest single risk to marine There is further work to do on the already provide a very large amount farming operations worldwide is practicality and relevance in Tasmania of environmental data under their fish disease and pests. Through of recirculating aquaculture systems licence conditions. But the capacity to significant investment in research and and potential land-based farming. The collect such information is constantly development in vaccine technologies, Government will cooperate with the improving, and now includes the coupled with good fish health and industry to develop outcome based possibility of some of it being biosecurity practices, Tasmania has performance measures that encourage available in real time, which creates escaped a major fish disease outbreak the use of emerging technology, and the important potential for real-time on the scale of those that have continuous improvement. devastated important marine farming monitoring. The Government will locations overseas. But with that risk in require increased use of real-time mind, in 2014 the salmon companies monitoring, where it’s technically Maintenance of key fish worked with the Department of possible given the limited reliability of health and biosecurity Primary Industries, Parks, Water and current equipment. assets Environment (DPIPWE) to develop a The Government will also improve the The Government will resource, and Biosecurity Program. transparency of information on the upgrade as necessary, the State’s key industry’s environmental performance The Government is strongly fish health and biosecurity assets by the establishment of an independent committed to continuing to underpin that are operated by DPIPWE. This web portal that will be hosted by Tasmanian biosecurity. As a priority, will require continuation of broad the Institute for Marine and Antarctic the Government will work with the industry consultation so that the work Studies. The website will provide industry to review the Biosecurity program of the State’s assets always access to all environmental data and Program and develop a new version reflects the real needs of the industry. to as much production information as that ensures the industry works to The Government will extend the possible, subject only to not revealing the highest biosecurity standards. It model of co-funding with industry that genuine “commercial in confidence” will include assurances of protection was developed for the new Aquatic information. for the inland salmonid populations Animal Health and Vaccines Centre from any risk of fish disease arising of Excellence at Mt Pleasant. The from the land-based facilities of the Encouraging relevant Government contributed an additional marine farmers. This approach will research and development, $500,000 to the Centre in the 2014- be consistent with the Government’s and the subsequent 15 Budget in fulfilment of an election complete overhaul of the State’s adoption of new commitment, and recently provided an biosecurity legislation and the intention technologies that reduce ongoing additional $150,000 a year. is to have the new program approved environmental impacts under the proposed new Biosecurity Act. If legislative change is required The industry in Tasmania has pioneered in order to implement elements of many technological advances in its the new Biosecurity Program, it will be history, and continues to work on a prioritised. wide range of further improvements. We are already seeing further advances in areas such as reducing waste through improved feeding techniques,
A sustainable industry growth plan for the salmon industry 21 Supporting industry growth
Commitment to Research, development The Government Sustainable Growth and innovation cannot directly drive The Government’s actions are The industry is in a highly competitive underpinned by a clear commitment market, globally and nationally. growth, but there to realising the growth potential of Growth will require keeping up with are ways it can the salmon industry, consistent with overseas competitors, as well as it remaining genuinely sustainable and dealing with new operating challenges appropriately taking full advantage of the efficiencies such as farming further offshore. The use its resources offered by improving technology and Government will continue to work practices. These are the conditions for with the salmon industry – including and influence to maintenance of the social licence the the ancillary sector – to support industry has established, and which it research, development and innovation support it. needs if it is to grow further. that can lead to the development of products and IP that are marketed and The Government supports the sold globally. industry’s own long-established target of becoming a $1 billion a year industry by 2030, while noting that this now Marketing and export appears conservative. The Government development support supports the industry’s growth so long linked to Tasmanian brand as it operates to the high standards and development expectations outlined in this Plan. The The competitive environment for effects of such growth on the wider salmon includes the sphere of Tasmanian community and economy marketing. The salmon companies could be enormously positive. Those are already very active marketers on possible benefits explain why the their own behalf, but salmon is also Government is so keen to look an important part of the broader beyond the current marine farming Tasmanian brand. The Government areas, to new water and new ways of commits to maintaining that linkage. It farming. We will also commission new also commits to using its capacity to economic research to quantify better support and develop export markets the full impact of the industry on the in order to reinforce the industry’s State’s economy. growth opportunities, including in the rapidly expanding ancillary sector whose growing stock of marketable IP in turn reinforces the “clever” aspects of the brand.
22 Skills and career Representative development industry body
The industry has a strong record The industry consists of more than of encouraging training and skills the farmers, given the growth of the development, with both public and important and innovative ancillary sector private providers. The Government and the role of the scientific community. has a strong record of supporting this The release of this Plan provides an effort, and is renewing the “Seafood ideal opportunity to bring together Pledge” for up to three more years, representatives of the whole industry to deliver critical funding to Seafood – salmon growers, ancillary industries Training Tasmania. But to make further and scientific community – to act as a growth possible skill levels will need reference group throughout the Plan’s to be even higher, and career paths implementation. The Government will will need to be improved to attract facilitate the establishment of the new, and retain skilled staff, especially in broad-based reference group as an early remote locations. The Government priority, and support it in developing commits to remaining a strong partner milestones. These will help track progress through public training providers and on implementation, which will be done institutions, and in the implementation through reviews after one year and then and review of the industry’s workforce every second year after that. development plan. This will include seeking to maximise the opportunities for Aboriginal Tasmanians to find and develop good careers.
A sustainable industry growth plan for the salmon industry 23 11240GD
Contacts [email protected] www.dpipwe.tas.gov.au/salmonplan