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Inquiry Into the Efficacy and Regulation of Shark Mitigation and Deterrent Measures Submission from the South Australian Government March 2017

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Inquiry Into the Efficacy and Regulation of Shark Mitigation and Deterrent Measures Submission from the South Australian Government March 2017 The Senate Environment and Communications References Committee - Inquiry into the efficacy and regulation of shark mitigation and deterrent measures Submission from the South Australian Government March 2017 Introduction The White Shark is a highly migratory species and is listed under the Convention on Migratory Species (CMS) (Appendices 1 and 2). The species is protected under the South Australian Fisheries Management Act (2007) in South Australian State managed waters, and by the Australian Commonwealth Government Environmental Protection, Biodiversity and Conservation Act (1999). Considerable community and government interest in White Sharks (Carcharodon carcharias) stems from the species being responsible for human injuries and fatalities during marine activities. Whilst interactions with White Sharks generally occur at low frequencies in South Australia, the potential consequences are high with most bites leading to injuries or, in some cases, deaths. In the last century, there were 60 shark attacks, including 19 fatalities and 33 injuries in South Australian waters. The last unprovoked fatality occurred off Glenelg in 2005: however, the last provoked (person spearfishing, diving or fishing) fatality was in 2014 off southern Yorke Peninsula. Since 2014 there have been five non-fatal interactions, three of which resulted in injury. The last serious injury was recorded in April 2015 near Port Lincoln. The scope of this response is limited to information collected on the White Shark in the South Australian region. Discussion a) Research into shark numbers, behaviour and habitat Shark numbers Estimating the number of White Sharks in the population is extremely challenging due to the high dispersal and patchy distribution of individuals in response to habitat, foraging, size, sex and age related factors. Since legislation to protect White Sharks was introduced in 1997, there have been no reliable estimates of abundance. The National Environmental Science Programme Hub is funding research by the Commonwealth Scientific and Industrial Research Organisation (CSIRO) to provide a national assessment of the population size of White Sharks using close-kin mark recapture methods. South Australia represents part of the study area and the South Australian Research and Development Institute (SARDI) is contributing samples to the CSIRO study. Behaviour and movements White Sharks are highly specialised endotherms capable of maintaining high metabolic rates in cool temperate areas, and hence they do not follow predicable seasonal patterns of movement. White Sharks inhabit South Australia’s gulf, coastal and offshore marine habitats during all seasons, and are mostly comprised of large juveniles and young adults ranging in size from 2.4 to 5 m. Within this size range, the species transitions from a diet mostly comprised of fish and squid, to one of large fish, other sharks and rays, and marine mammals (pinnipeds and cetaceans). SARDI has conducted electronic tagging-based research on White Sharks since 2011 and has deployed 67 tags (Rogers et al. 2014; Rogers and Huveneers 2016; Rogers and Drew unpublished data, FRDC Project 2014/020). During this period, strategic development of national data-sharing agreements for White Sharks has ensured maximum benefit from movement-based 2 research projects focusing on State and national priorities, including those in the Commonwealth’s species recovery plan. The aim of a current Fisheries Research and Development Corporation (FRDC) funded study is to quantify the spatial and temporal overlap of pelagic sharks and South Australian marine industries, and to collect new information on movement and fidelity to key areas. SARDI’s research (Rogers and Huveneers 2016, Rogers and Drew unpublished data, FRDC Project 2014/020) has shown: Satellite tracking and acoustic telemetry data from 67 tag deployments in South Australia since 2013 indicates that White Sharks exhibit highly mobile, roaming movement strategies (Fig. 2). The species exhibits minimal fidelity and regular ‘fly-bys’ over a range of natural foraging habitat types including areas used by marine industries, deep-water migration paths and habitats of Snapper, and Australian Sea Lion and Long-nosed Fur Seal breeding colonies and haul-outs sites (Fig. 3). Several offshore habitats that overlap with pinniped colonies are also areas used by the South Australian Abalone Fishery (Fig. 2 and 3). Fidelity exhibited by White Sharks at cage-diving sites is significantly higher than at natural foraging habitat types and areas used by marine industries (Fig. 3). The existence of shared, north-south and east-west oriented movement pathways extending across, into and out of southern Spencer Gulf (Fig. 2 and 3). Preference for deep-water gulf and shelf habitats >20 m (Fig. 2, 3 and 4). Use of offshore shelf areas around the Sahul coastline (80–130 m), and shelf-slope submarine canyon habitats south of Kangaroo Island and the Eyre Peninsula (Fig. 2 and 4). b) The regulation of mitigation and deterrent measures under the Environment Protection and Biodiversity Conservation Act 1999, including exemptions from a controlled action under section 158 The mitigation and deterrent measures adopted in South Australia are not regulated or do not require exemptions under the Environment Protection and Biodiversity Conservation Act 1999. c) The range of mitigation and deterrent measures currently in use Aerial surveillance Mitigation measures aimed at large sharks (e.g. White Sharks) adopted in South Australia includes surveillance in Adelaide metropolitan and south coast waters via the Surf Life Saving SA (SLSSA) helicopter and a fixed wing plane patrols. The South Australian Government has conducted aerial shark surveillance since the 2001-02 summer season. 3 The service consists of two components, a daily fixed wing service flying a regular schedule along target coastlines, and a complementary rotary wing (helicopter) service that provides static cover over designated aquatic events. While originally focussed over the metropolitan Adelaide coastline, ongoing risk assessment has seen the service expand to include waters of the Fleurieu Peninsula. The fixed-wing aircraft patrols the coastline from North Haven to Rapid Bay, and beaches between Victor Harbor and Goolwa seven days a week from December until April. The timings have been determined as appropriate for the risk profile as they correspond with warming water temperatures, the migration of bait fish into St Vincent Gulf and resultant increase in shark activity, and an increase in aquatic recreational activity and organised open water aquatic events over the school holiday and summer periods. Statistically most shark sightings occur in December and early January each year. While the efficiency and reliability of aerial patrols has been called into question in some jurisdictions, unlike most other populated coastlines of Australia the coastlines monitored in South Australia has relatively shallow clear water, defined weed line and lack of surf zone provides favourable conditions for discriminating targets from the air. The focus of fixed wing aerial shark patrols is on the waters within 500 metres of the shoreline over the length of the target area, while rotary wing services cover the respective aquatic activity area. Fixed Wing Patrols During the 2016/17 a total of 1060 hours have been forecast towards regular coastal surveillance by fixed wing aircraft. The patrol area extends 500 metres offshore along the Adelaide metropolitan coast from North Haven to Rapid Head, and the south coast of the Fleurieu Peninsula from Rosetta Head (Victor Harbor) to the mouth of the Murray River. Timings and flight paths are varied to provide greatest cover at periods of highest activity. To enable compliance with contract provisions to provide a high wing aircraft allowing clear and unobstructed vision, the current contractor utilises Cessna 172 aircraft with a minimum of three personnel. This is seen as advantageous in allowing the pilot to concentrate on the safe operation of the aircraft while providing two dedicated ‘observers’ to concentrate on maintaining watch and managing/communicating any sightings. All ‘observers’ undertake training provided by the South Australian State Emergency Service (SES) to the nationally accredited standard for Air Observers provided by the Australian Maritime Safety Authority. Rotary Wing Patrols Rotary wing patrols of open water aquatic events are provided under contract with Surf Life Saving South Australia (SLSSA), utilising a helicopter provided in association with a commercial agreement between them and Westpac. The Westpac Life Saver Rescue Helicopter conducts regular patrols of the Adelaide metropolitan beaches and the south coast during the summer months. One advantage of this approach is the helicopter can be used to actively drive large sharks away from the shore to reduce the immediate risk of interactions with members of the public. No patrols are conducted in regional areas. During the 2016/17 season a total of 18 rotary wing patrols associated with aquatic events were undertaken. 4 In the event of a shark sighting, SLSSA advises that generally the shark moves (or is moved) to deeper water once the helicopter hovers above the shark and emits ‘rotor wash’ to the water surface. Routine Management of Sightings On the sighting of a shark by the fixed wing service that may pose a risk to persons in the area, the aircraft will fly a series of continuous orbits above the sighting
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