Draft Management Plan for Recreational Fishing in South
Transcription
Draft Management Plan for Recreational Fishing in South
Draft Management Plan for Recreational Fishing in South Australia PUBLIC CONSULTATION DOCUMENT JANUARY 2016 PIRSA Fisheries and Aquaculture (A Division of Primary Industries and Regions South Australia) GPO Box 1625 ADELAIDE SA 5001 www.pir.sa.gov.au/fisheries Tel: (08) 8226 0900 Fax: (08) 8226 0434 © Primary Industries and Regions South Australia 2016 Disclaimer: This Management Plan has been prepared pursuant to the Fisheries Management Act 2007 (South Australia) for the purpose of the administration of that Act. The Department of Primary Industries and Regions SA (and the Government of South Australia) make no representation, express or implied, as to the accuracy or completeness of the information contained in this Management Plan or as to the suitability of that information for any particular purpose. Use of or reliance upon information contained in this Management Plan is at the sole risk of the user in all things and the Department of Primary Industries and Regions SA (and the Government of South Australia) disclaim any responsibility for that use or reliance and any liability to the user. Copyright Notice: This work is copyright. Copyright in this work is owned by the Government of South Australia. Apart from any use permitted under the Copyright Act 1968 (Commonwealth), no part of this work may be reproduced by any process without written permission of the Government of South Australia. Requests and enquiries concerning reproduction of this work should be addressed to the Chief Executive, Department of Primary Industries and Regions SA, 25 Grenfell Street, Adelaide, SA, 5000 (marked attention Executive Director, Fisheries and Aquaculture Division). The South Australian Fisheries Management Series Paper number XX: Management Plan for Recreational Fishing in South Australia ISBN XX ISSN XX Objective ID: A1289914 Page 2 of 77 CONTENTS 1 2 3 4 Fishery to Which This Plan Applies ................................................................... 6 Consistency with other Management Plans ...................................................... 6 Term of the Plan and Review of the Plan........................................................... 6 Description of Fishery ........................................................................................ 7 4.1 Biological and environmental characteristics .................................................. 9 4.2 Biology of key species .................................................................................. 10 4.3 Social and economic characteristics............................................................. 12 5 6 Co- Management Arrangements .......................................................................15 Ecosystem Impacts ............................................................................................17 6.1 Strategies to address ESD risks ................................................................... 18 7 Goals and Objectives .........................................................................................24 7.1 Goal 1 – Ensure that recreational fishing resources are harvested within ecologically sustainable limits ................................................................................. 25 7.2 Goal 2 – Optimal utilisation and equitable distribution of recreational fishing resources ............................................................................................................... 25 7.3 Goal 3 – Recreational fishing impacts on the ecosystem are minimised ....... 26 7.4 Goal 4 – Effective, efficient and participative management of recreational fishing ..................................................................................................................... 26 8 Harvest Strategy.................................................................................................33 8.1 Overview ...................................................................................................... 33 8.2 Objectives of the harvest strategy ................................................................ 34 8.3 Biological objectives, performance indicators and trigger/limit reference points ..................................................................................................................... 34 8.4 Decision rules .............................................................................................. 35 8.5 Potential management options for revised recreational fishery management arrangements ......................................................................................................... 36 9 8.6 Species not covered by a commercial fishery management plan ................. 36 8.7 Review of harvest strategy ........................................................................... 37 Allocation of Access Between Sectors.............................................................37 9.1 Current allocated shares of the resource ...................................................... 37 9.2 Species allocated ......................................................................................... 39 9.3 Allocation triggers......................................................................................... 41 9.4 Review of allocations ................................................................................... 44 9.5 Allocation review process ............................................................................. 44 10 Recreational Fishing Research and Stock Assessment..................................46 10.1 Data collection, reporting and analysis...................................................... 46 10.2 Recreational fishing surveys ..................................................................... 46 10.3 Status reporting of species ....................................................................... 47 10.4 Research services .................................................................................... 47 11 Compliance and Monitoring ..............................................................................48 11.1 Objectives ................................................................................................. 48 Page 3 of 77 11.2 Recreational fishing initiatives assisting with voluntary compliance........... 48 11.3 Compliance costs ..................................................................................... 49 11.4 Planning ................................................................................................... 49 11.5 Compliance risk assessment .................................................................... 49 11.6 Responses and benchmarks .................................................................... 49 12 Regulatory Arrangements .................................................................................50 12.1 Management arrangements ...................................................................... 51 13 Resources Required to Implement the Plan .....................................................54 13.1 Costs of managing recreational fishing ..................................................... 54 14 Appendices .........................................................................................................55 14.1 Appendix 1: Estimated recreational 2013/14 catch ................................... 55 14.2 Appendix 2: Information used to allocate shares....................................... 60 14.3 Appendix 3: Sectors related to fishing allocations ..................................... 60 14.4 Appendix 4: Spatial scale of allocations .................................................... 62 14.5 Appendix 5: Temporal scale allocation- Lake Eyre Golden Perch ............. 64 14.6 Appendix 6: Recognising past allocation agreements ............................... 64 14.7 Appendix 7: Species names ..................................................................... 65 14.8 Appendix 8: Calculation of allocation triggers............................................ 66 14.9 Appendix 9: Recreational permitted fishing gear ....................................... 67 15 Acronyms ...........................................................................................................68 16 Glossary of Common Fisheries Management Terms ......................................69 17 References ..........................................................................................................75 Page 4 of 77 LIST OF FIGURES Figure 1: Map of South Australia showing the locations of 35 regions used for reporting recreational fishing activities – marine and freshwater........................................... 8 Figure 2: Process for the recreational sector where triggers are triggered .................. 35 Figure 3: Commercial and recreational access to Pipi ................................................ 64 LIST OF TABLES Table 1: Objectives and strategies in the management plan to address the most serious risks (moderate, high and extreme) identified through the 2011 and 2012 ESD risk assessment workshops. ....................................................................... 18 Table 2: Management goals, objectives, strategies and reference points for management of recreational fishing..................................................................... 27 Table 3: Shares of recreational species allocated to the commercial, recreational and Aboriginal Traditional fishing sectors. .................................................................. 38 Table 4: 2007/08 catches (Kg) of Western Australian Salmon by sector and area. ..... 40 Table 5: Allocation triggers (percentages- portion of harvest). Key species highlighted green................................................................................................................... 42 Table 6: Estimated annual catch (total, harvested and released numbers) and release rates (%) of marine finfish species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015). .................................................................................... 55 Table 7: Estimated annual catch (total, harvested and released numbers) and release rates (%) of marine shellfish, crustacean and cephalopod species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015)............................................... 57 Table 8: Estimated annual catch (total, harvested and released numbers) and release rates (%) of freshwater species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015). ................................................................................................. 58 Table 9: Species allocated, common names and scientific names. ............................ 65 Table 10: Allocation trigger calculation table for triggers key important recreational/commercial species (King George Whiting, Australian Herring, Snapper, Southern Garfish, Southern Calamari, Blue Swimmer Crabs, Pipi, Golden Perch [SAMDB], Mulloway, Mullet spp., Southern Rock Lobster, Abalone). ............................................................................................................................ 66 Table 11: Allocation trigger calculation table for other recreational/commercial species (Australian Sardine, Australian Anchovy, Black Bream, Bronze & Dusky Whaler Shark, Flathead, Golden Perch [Flood and Non Flood], Greenback Flounder, Sand Crab, Snook, Trevally, Vongole (Mud Cockle) Spp., Yellowfin Whiting, Yellowtail Kingfish). ............................................................................................................. 67 Page 5 of 77 1 FISHERY TO WHICH THIS PLAN APPLIES This plan applies to recreational fishing occurring in South Australia. As defined in the Fisheries Management Act 2007, recreational fishing means fishing other than commercial fishing or Aboriginal traditional fishing. Recreational fishing across South Australia is controlled by the Fisheries Management Act 2007 and Fisheries Management (General) Regulations 2007. The recreational fishery is not licensed but is subject to a range of regulatory restrictions such as size, bag, boat and possession limits, restrictions on the types of gear that may be used, temporal and spatial closures and the complete protection of some species. Registration requirements exist for the use of recreational Rock Lobster pots and recreational mesh nets for Lake George and the Lower Lakes and Coorong. This plan does not apply to recreational fishing undertaken by persons facilitated by the South Australian Charter Boat Fishery, which is guided by its own management plan (PIRSA 2011a); it is consistent with that plan and other commercial fishery management plans. 2 CONSISTENCY WITH OTHER MANAGEMENT PLANS The aquatic resources accessed by recreational fishers are also subject to a number of existing commercial fishery management plans, including the multi-species Marine Scalefish Fishery and other commercial single species fishery management plans (i.e. Blue Crab Fishery). In particular, the provisions relating to the allocation of recreational access shares to many of these aquatic resources have recently been addressed for the first time during the development of other fishery management plans. The access shares prescribed in this plan reflect the shares have been allocated between fishing sectors in other existing fishery management plans. This management plan has also been developed so that it can be integrated with any Aboriginal traditional fishing management plans that are made in the future and apply to the waters of this management plan. 3 TERM OF THE PLAN AND REVIEW OF THE PLAN This applies from [date] for a period of 10 years. Section 49 of the Fisheries Management Act 2007 prescribes the requirements for replacing of extending this management plan upon expiry. Under the Fisheries Management Act 2007 (the ‘Act’) management plans are subject to periodic review by PIRSA and key stakeholders. Section 49 of the Act outlines the process of reviewing a management plan. A review of the plan may be conducted at any time if needed earlier than the minimum requirements of the Act. Page 6 of 77 4 DESCRIPTION OF FISHERY Recreational fishing is a non-commercial and non-Aboriginal traditional activity wherein fish are captured for personal consumption, sport or pleasure and either retained (e.g. consumed, shared) or released. A recent definition of recreational fishing is “fishing activities undertaken either for personal consumption or for fun, sport, thrill of the catch or social bonding” (Arlinghaus et al, 2010). This definition highlights the social shift whereby increasing numbers of recreational fishers seek to enjoy the total fishing experience in addition to harvesting fish. However, research has shown that a relatively small proportion of fishers exert a significant proportion of the total recreational fishing effort in Australia (Henry and Lyle, 2003) and in South Australia (Giri et al, 2015). The South Australian Recreational Fishing Survey 2013/14 indicated that 20% of South Australian recreational fishers accounted for 56% of the total effort in 2013/14. This highlights the potential for a relatively small proportion of the recreational fisher population to have a substantial impact and suggests that minor changes within this part of the fishery could have significant implications for total recreational effort (and catch) (Giri et al, 2015). Recreational fishing is an important aspect of social, cultural, and economic life in South Australia. Not only is the fishing experience a cornerstone of recreational activity, it contributes significantly to jobs and economic activity in metropolitan and regional South Australia. Recreational fishing is one of the most popular leisure activities in South Australia, with over 277,027 SA residents aged five years or older participating (approximately 18% of the state’s total population) (Giri et al, 2015). Fishing activities generate valuable social and economic returns, particularly in regional communities. For several coastal regions, more than 1 in every 3 residents went recreational fishing in the period 2007/08 and 2013/14 (Jones 2009 and Giri et al, 2015). The Fisheries Management Act 2007 acknowledges the importance of recreational fishing to the State. The Act: • Requires that shares of aquatic resources (fish and aquatic plants) are allocated to the recreational fishing sector • Requires that management decisions are made that ‘foster’ recreational fishing for the benefit of the community • Provides for a management plan to be developed for recreational fishing Recreational fishing is undertaken in all coastal and the majority of freshwater habitats in South Australia, using a variety of permitted gear types (see Appendix 9) and platforms (boats, jetties, breakwaters and shore). The main species harvested by recreational fishers include Blue Swimmer Crabs, King George Whiting, Australian Herring, Pipi (Goolwa Cockle), Southern Garfish, Southern Calamari, Striped Trumpeter, Snapper, European Carp, Western Australian Salmon, Arrow Squid and Scallops. Recreational fishers access a broad range of South Australian coastal waters including gulfs, bays and estuaries (including the Coorong estuary) from the Western Australian border (129°E longitude) to the Victorian border (141°E longitude) and many inland areas including lower reaches of the Murray-Darling Basin and Lake Eyre Basin (Figure 1). Most recreational fishing effort occurs in marine waters, including estuaries, and inshore and offshore waters; freshwater environments only accounted for small amount of fishing effort (Jones, 2009; Giri et al, 2015). The gulfs are where most of the recreational fishing activity takes place in South Australia. In 2013/14, the Spencer Gulf region had the highest level of fishing effort followed by Gulf St Vincent and Kangaroo Page 7 of 77 Island (KI), the West Coast and the Limestone Coast. Most freshwater fishing occurred in the River Murray (Jones, 2009; Giri et al, 2015). Figure 1: Map of South Australia showing the locations of 35 regions used for reporting recreational fishing activities – marine and freshwater. The most recent data available for the South Australian Recreational Fishery was collected through the South Australian Recreational Fishing Survey 2013/14 (Giri et al, 2015). This survey conducted a state-wide assessment of recreational fishing in South Australia. It provides a statistically robust estimate of participation levels and demographics of South Australian residents and their fishing effort and catches. This report allows for comparison to be made between the recreational and commercial fishing sectors, especially when making decisions relating to access and allocation of resources. During the period of the 2013/14 survey, an estimated 12,726,975 finfish, crustaceans, molluscs and other animals were caught by SA residents fishing in SA. Of these, a total of 8,293,082 (65.2%) were harvested and 4,433,897 (34.8%) were released. The most commonly caught species were Blue Swimmer Crabs, King George Whiting, Australian Herring and Pipi, with more than one million individuals caught of each of those species (approximately 2.4, 2.0. 1.2 and 1.0 million, respectively) (Giri et al, 2015). In descending order, Southern Garfish, Snapper, Southern Calamari, Striped Trumpeter, European Carp, Western Australian Salmon, Arrow Squid, and Scallops were the next most numerous species caught (see Appendix 1 for further details). In terms of harvested numbers, a total of almost 4.9 million finfish were retained, with King George Whiting, Australian Herring, Southern Garfish and Snapper comprising a significant proportion (almost 68%) of the finfish harvest. For marine shellfish, an estimated total catch of about 3.0 million animals were taken by recreational fishers, Page 8 of 77 with Blue Swimmer Crab (47%), Southern Calamari (16%) and Pipi (13%) being the three most numerous species taken. Finally, for the freshwater species, an estimated total of 376,663 finfish and other species were caught, with European Carp (55%), Golden Perch (10%) and freshwater Yabbies (16%) being the three most numerous species taken (see Appendix 1 for further details). Recreational fishing techniques include hand gathering, spearfishing, netting, angling (hook and line) and trapping; refer to section 12.1.4 for further details. 4.1 Biological and environmental characteristics 4.1.1 Marine ecosystem and habitat South Australia’s coastal regions support a diverse range of ecosystems, marine habitats and aquatic resources. An inventory of coastal fisheries habitats by Bryars (2003) identified 12 important habitats in South Australia: reef, surf beach, seagrass meadow, un-vegetated soft bottom, sheltered beach, tidal flat, tidal creek, estuarine river, coastal lagoon, mangrove forest, saltmarsh, and freshwater spring. Many of these habitats are found within two gulfs; Gulf St Vincent and Spencer Gulf, which is where the majority of recreational fishing is undertaken. Both gulfs contain significant areas of seagrass meadows, saltmarshes and mangroves which are all recognised nursery areas for key recreational fish species such as King George Whiting, Southern Garfish and Blue Swimmer Crab. The range of habitats throughout South Australia’s coastal regions provide important habitat for all life history stages of each of South Australia’s key recreationally targeted species. The more southern waters of the gulfs are of oceanic character whilst to the north salinity increases, reaching 48 parts per thousand in the most northern reaches. This rising salinity is brought about by the decreasing water depth and higher summer water temperatures causing high evaporation rates (PIRSA, 2007). These environmental conditions are optimal for some species of more tropical distribution (e.g. Blue Swimmer Crab). Primary production in the more sheltered parts of the gulfs, and in embayments off the west coast of Eyre Peninsula and the north coast of Kangaroo Island, is dominated by a number of seagrass species that occur at depths to about 20 m in clearer waters but about 10 m in the gulfs. The natural and artificial reefs in the gulfs provide high quality habitats for a number of species including juvenile and adult Snapper, which form spawning aggregations during the summer spawning season. Understanding ecosystem function and the potential impacts of the fishery on these functions is a key aspect of fisheries management. Managing recreational fishing as part of the broader ecosystem is a goal of this plan. A risk-based approach to managing ecosystem impacts has been undertaken and is considered in more detail in Section 6 ‘Ecosystem Impacts’. 4.1.2 Freshwater ecosystem and habitat South Australia’s inland area is expansive and has considerable variation in its climate. A large part of the state has little or no surface water due to low rainfall and a lack of significant mountains. However, freshwater fish can be found from tiny mound springs in flat, hot desert landscapes, to small local streams and wetlands, to local rivers in Adelaide through to the iconic River Murray, the largest river in South Australia. As unique as South Australia freshwater habitats are, there are also places such as the Lake Eyre Basin where fish are able to colonise temporary or seasonal habitats. Page 9 of 77 Around 60 freshwater fish species have been recorded in South Australia. They range in size from the iconic, large-bodied Murray Cod to the tiny Dwarf Galaxia, which has a maximum size of two to three centimetres. The River Murray is the largest inland system for recreational fishing; the river itself extends from the border of New South Wales and Victoria all the way to the its mouth, where it enters the Southern Ocean. Appendix 1: Estimated recreational 2013/14 catch lists the key freshwater finfish species that were recorded as taken in the 2013/14 survey. Many freshwater fish species are dependent on movement and river flows; volume, duration and timing. There has been investment in infrastructure changes and water delivery in recent times which will assist in providing for fish’s environmental needs e.g. fish passages in the River Murray and River Torrens, and the Adelaide and Mount Lofty Ranges Natural Resource Management Board’ environmental flows project in the Torrens, South Para and Onkaparinga rivers. In 2014, the Government of South Australia committed to investigate the opening of five offline SA Water reservoirs to recreational fishers to increase opportunities for recreational fishing. The five reservoirs that are being investigated (at the time of writing this plan) are the Warren, Bundaleer, Baroota, Tod and Hindmarsh Valley reservoirs. 4.2 Biology of key species The key recreational species harvested and targeted by recreational fishers include Blue Swimmer Crabs, King George Whiting, Australian Herring, Pipi (Goolwa Cockle), Southern Garfish, Southern Calamari, Snapper and Western Australian Salmon. Detailed information on the biology and stock status of key recreational fish species is provided in stock assessment and stock status reports prepared by the South Australian Research and Development Institute (SARDI), Aquatic Sciences. All completed reports are available on the PIRSA website at www.pir.sa.gov.au by searching for ‘research report series’ and the 'name of the fish’ you are looking for e.g. ‘research report series Snapper’. In addition, further information regarding the regulated recreational species is available in the support document to this publication: the Review of size, bag and boat limits in South Australia’s recreational fishing sector, marine and freshwater. Summary descriptions of the biology of key species can be found in the corresponding fishery management plans as listed below: • King George Whiting, Snapper, Southern Garfish and Southern Calamari Management Plan for the South Australian Commercial Marine Scalefish Fishery 2013 • Blue Swimmer Crab - Management Plan for the South Australian Commercial Blue Swimmer Crab Fishery 2012 • Pipi - Draft Management Plan for the South Australian Commercial Lakes and Coorong Fishery 2014. The biology of Mulloway, Golden Perch, Murray Cod and Mullet spp. can also be found in this plan. • In addition to the above listed species, the biology of recreational species with bag limits (Australian Herring, Western Australian Salmon) is outlined in the Review of Size, Bag, and Boat Limits in South Australia’s Recreational Fishing Sector, Marine and Freshwater. Page 10 of 77 Copies of the fishery management www.pir.sa.gov.au/fisheries/publications. plans can be found at Descriptions are provided below of the biology of two key recreational species that are not described in the other fishery management plans. 4.2.1 Australian Herring Australian Herring, also known as ‘Tommy Ruff’, is an inshore schooling fish endemic to southern Australian waters and is generally fished off jetties. In 2007/08, Australian Herring was the third most commonly caught marine finfish in SA (Jones 2009). The only known spawning aggregations occur off the south west Western Australian coast and are dependent on local WA recruits and sub-adults passing through gauntlet fisheries from SA, Victoria and Tasmania. Size of first maturity (L50) of females is 20 cm in Western Australia. In some years, a strong current carries most eggs and larvae south and as far east as Victoria. In other years, more eggs and larvae stay on the west coast of WA. Herring stay where they settle until reaching maturity, when they migrate back to WA’s lower west coast to spawn. After this they stay on the west coast of WA and there is no return migration. Australian Herring aggregate on the WA west coast around May to June to spawn. This life cycle has important implications for South Australia, as the fish caught in South Australia are immature/pre-spawning fish, which must migrate back to the WA west coast if they are to spawn. The recreational harvest of Australian Herring in 2007/08 was 93.30 t and in 2013/14 was 157.23 t. This fish is considered by many to be a good training species for children learning to fish. 4.2.2 Western Australian Salmon Australian Salmon is an inshore schooling fish endemic to southern Australian waters and is a species of high sport fishing value, especially when fished from shore (Lindsay et al, 1998). There are two species of Australian Salmon: Eastern Australian Salmon (Arripis trutta) and Western Australian Salmon (A. truttaceus). The Western Australian Salmon biological stock is distributed from Kalbarri in Western Australia southwards to South Australia, Victoria and the west coast of Tasmania. Both species have spawning areas that allow eggs and larvae to be dispersed by the prevailing currents, southwards and then eastwards by the Leeuwin Current. The fish then grow and mature before moving back towards their spawning areas. Western Australian Salmon live to 12 years of age with a maximum size of 85 cm. They reach maturity (L50) at 3–5 years; 60–65 cm (fork length). The smaller size ranges of this species (known as “salmon trout”) are regarded as a ‘bread and butter’ species for recreational fishing. The estimated recreational harvest in 2007/08 was 91.30 t (89.7% of the total harvest), in 2013/14 it was estimated at 56.23 t (48% of the total harvest). Low catches in the commercial sector (Marine Scalefish Fishery) are due to historically low levels of targeted fishing effort (Fowler, 2010b). Page 11 of 77 4.3 Social and economic characteristics In Australia, limited information has been collected on the economic and social impacts of recreational fishing. In South Australia, there has been some application of wellestablished methods for measuring the social and economic value, both direct and indirect. It is clear that recreational fishing brings economic benefits to the state, through attributable and associated expenditure. For example, expenditure generally attributed to recreational fishing includes fishing gear, bait and boating costs. Other associated expenditure includes travel costs, accommodation and food. Much of this expenditure associated with fishing is spent in regional areas of South Australia. Some of the recreational economical valuation projects have been undertaken include: • In Victoria: Economic study of recreational fishing in Victoria, prepared for VRFish (Ernst & Young, 2009) • In the Murray-Darling Basin (across jurisdictions): Economic Study of Recreational Fishing in Victoria Murray Cod Assessment, prepared for VRFish (Ernst & Young, 2010 & 2011); and Economic contribution of recreational fishing in the Murray-Darling Basin, prepared for Department of Primary Industries (Victoria) (Ernst & Young, 2011). The report indicated that recreational fishing contributed to a direct expenditure of $114 million in the South Australian section of the MDB. • Nationally: The 2000/01 National Recreational Fishing Survey Economic Report (Campbell and Murphy, 2005). The most recent expenditure estimate for South Australia was in 2000/01 where the annual estimated recurrent expenditure by the state’s recreational fishers was $148 million. It is noted this information is likely to be very outdated. This expenditure included money spent during the 2000/01 national recreational fishing survey period, and included expenditure for directly related fishing items, such as bait and boat hire, as well as indirect expense items such as travel and accommodation (Campbell and Murphy, 2005). Some industries depend either wholly on the recreational fishing sector (the fishing tackle and bait industry, and the fishing tour and charter industry) or rely on it for a large proportion of income (the recreational boating industry and the tourism industry in coastal regions) (Stephan et al, 2014). There are various methods that can be used to assess the economic value of recreational fishing. Each method has its own advantages and disadvantages and each method’s appropriateness depends on what purpose the valuation will be used for (FRDC, 2013). Regardless of the ‘approach’ chosen to assess the economic valuation, the task of establishing a standard and robust procedure for recreational fishing will present challenges (FRDC, 2013). There is no common agreement on the use of an appropriate and comparable economic value to both the recreational and commercial fishing activities, which is often sought for considering allocation or reallocation of a resource. Care should be used where recreational expenditure information is used to compare to the commercial value. Generally, Gross Value of Product (GVP) is used to value the commercial sector, which is the price received for fish taken to market. This cannot be done for the recreational sector because the fish are not sold, and in some cases not landed (catch and release). Furthermore, the commercial GVP value does not include the value of expenditure of the commercial sector in boats, accommodation, travel, equipment etc., the value of locally caught seafood bought by consumers or the attraction this may provide for local tourism. Page 12 of 77 Measurement of the social aspects of fisheries management is a developing area of interest and there are a number of national initiatives currently underway which aim to assist management agencies to collect and monitor relevant social data. PIRSA has led a Fisheries Research and Development Corporation (FRDC) project that investigated the social aspects of recreational fishing in South Australia. A survey of recreational fishers was undertaken and a subsequent report was completed in 2014, which outlines the social aspects of recreational fishing in South Australia. To date, attitudinal surveys of recreational fishers have identified key factors as being to relax and unwind, to get outdoors, to spend time with family and friends, and the enjoyment or sport of catching fish (Triantafillos et al, 2014). Recent studies have emphasised that recreational fishing may have important benefits for fisher health and wellbeing (McManus et al, 2011). A social survey was undertaken in 2011/12 to understand the social dimension of recreational fishing in South Australia. The survey was targeted towards avid fishers and formed part of a broader research project into identifying social objectives and indicators. A copy of the report can be found at: http://frdc.com.au/research/finalreports/Full_report-2010-040/Appendix13/Pages/default.aspx. Some key findings from the Triantafillos et al (2014) survey are provided below: • Most fishers fished in the same region they lived: for example 62.6% of fishers from Adelaide and surrounds reported fishing in the inner Adelaide fishing region, and 94.3% of fishers living in Port Lincoln reported fishing in the Port Lincoln region. • A large majority (61.2%) of fishers had fished in SA for more than 30 years, with most fishers learning to fish during their childhood (>80%). It was uncommon for people to have begun fishing as a hobby after childhood. • The most common platform reported was non-charter boat fishing (78.9% of respondents), followed by land-based fishing (70.6%), with 18.4% reporting they did charter fishing. Of respondents, 66.7% reported participating in inshore fishing (defined as within five kilometres of shore), 45.2% in offshore fishing (greater than 5 kilometres from shore), and 31.9% in freshwater fishing. • The most common use of fishers’ legal catch across all respondents was for the catch to be eaten, however this varied by fisher age. Younger fishers reported eating a much smaller proportion of their catch compared to older age groups, and were much more likely to report that they engaged in catch and release fishing, and used some of their catch as bait compared to older fishers. • The most common methods of learning fishing skills were through self-teaching, from family members, and from other fishers • The majority of respondents indicated fishing was moderately or highly important to their life overall. Respondents were significantly more likely to rate fishing as highly important to their life if they also: o fished a large number of days, with more avid fishers more likely to consider fishing as very important to their life; o were more satisfied with their fishing activities overall; o spent larger amounts on recreational fishing; o had lower household income, although the relationship was not as strong as for other factors; o had lower levels of formal education; or o were an active member of a recreational fishing organisation. Page 13 of 77 • • • The aspects of fishing that were considered to be important varied depending on the demographic characteristics of the fisher and varied somewhat by the region they lived in. The importance of fishing for solitude was greater for people in age groups between 18 and 44, and lower for older age groups. Meanwhile, eating catch was more commonly of importance to older respondents than younger fishers, while the importance of fishing to spend time with family was greatest for those aged between 30 and 50 years, and fishing with friends was of similar importance across most age groups except those aged 65 and above. The survey also provided information on the satisfaction with fishing, fishing infrastructure, recreational fishing rules, regulations and stewardship, accessing information about recreational fishing, fisheries management, involvement in fisheries management and fishing expenditure. (Schirmer et al, 2014) The 2013/14 South Australian recreational fishing survey estimated that in the 12 months prior to November 2013: • A total of 277,027 SA residents recreationally fished at least once in SA, representing 18.3% of the SA resident population. • Males continued to have a higher participation rate than females. • By age, the highest participation rates occurred within the youngest age group surveyed (5–14 years), with both male and female participation rates in this strata showing an increase from 2007/08. Female participation in this age group almost doubled. • The greatest number of male recreational fishers occurred in the age group of 45–59 years. • The lowest participation rates again belonged to the oldest age group (60 years or more), and similarly both male and female participation rates in this age group have increased since 2007/08. • For males, the greatest number of recreational fishers occurred in the age group of 45–59 years, whereas for females, the greatest number of recreational fishers came from the youngest age group of 5–14 years. (Giri et al, 2015) The social information described above and collected through the 2013/14 survey have been considered in the strategies in Section 7 ‘Goals and Objectives’, and will be considered when assessing management options for future management changes as needed and in future ecologically sustainable development (ESD) risk assessments for the recreational fishery. The 2011 ESD risk assessment workshop for the recreational fishery considered a number of community components that related to social and economic issues associated with recreational fishing. All the community components were considered to be at least moderately important by workshop participants, with two ranked as highly important (see Table 1). Page 14 of 77 5 CO- MANAGEMENT ARRANGEMENTS Co-management is an arrangement whereby responsibilities and obligations for sustainable fisheries management are negotiated, shared and delegated at appropriate levels between government, recreational fishers, Aboriginal traditional fishers, the commercial fishing industry and other key stakeholders such as conservation groups (Neville, 2008). Co-management is recognised as a collection of positions starting from centralised government regulation with no stakeholder input at one end, to more autonomous management by industry groups and key stakeholders at the other, where government plays more of an audit role. Co-management is designed to achieve efficient regulatory practice (among many other things) and is by no means a way of industry or other key stakeholders avoiding regulatory scrutiny and influence. RecFish SA is recognised as the peak representative body for recreational fishing. A service agreement has been ratified by both PIRSA and RecFish SA and an annual schedule of reporting and responsibilities is set out pursuant to the agreement. The Minister for Agriculture, Food and Fisheries has oversight of the management of the fishery under this management plan, but day to day management is conducted by PIRSA in association with RecFish SA. In 2015, RecFish SA released its strategic plan for the recreational fishery, which pursues opportunities to improve and support co-management arrangements. The key goals of the strategic plan include: • Securing a sustainable, long-term resource base to pursue the shared vision of South Australia’s recreational fishing community. • Increasing unity through increased engagement-both within the fishing community and with allied interests. • Increase external stakeholder support/respect for recreational fishing in South Australia. • Maintaining and increasing recreational fisher access to healthy, sustainable and high-quality fishing experiences. • Build capacity within the recreational fishing community through education and learning. RecFish SA and PIRSA will continue to pursue opportunities to improve the comanagement arrangements for the recreational fishery. This is undertaken in accordance with the principles provided in the Policy for the Co-Management of Fisheries in South Australia (PIRSA, 2013b), in an effort to deliver sound, effective and efficient management outcomes and the strategies outlined in this plan. The following projects provide examples of participation by recreational fishers including RecFish SA in fishery management processes: • PIRSA and RecFish SA are participating in the Reservoir Fishing Taskforce to create new fishing opportunities through opening offline SA Water reservoirs suitable for recreational fishing • PIRSA and RecFish SA have recently discussed the possibility of a small project in the Onkaparinga to improve management of recreational fishing for Bream. This project would assist to develop a solution for catch and release of Bream (through a co-management approach) by increasing the information on Bream abundance, survival rates and catch and effort levels in the area. • Joint communications such as the fact sheet on ‘Helping Snapper Survive - A best practice guide to catch and release’. This was developed as a recreational education tool to improve recreational fishing practices, thereby increasing Page 15 of 77 • • • • • survival rates of released fish to support the sustainability of the Snapper fishery. Introduction of temporary commercial crab closure for metropolitan waters to provide recreational fishers greater opportunities to catch Blue Swimmer Crabs during the peak recreational Blue Swimmer Crab fishing period. Development and refinement of metropolitan shark fishing restrictions to address community concerns though targeted consultation with key recreational fishing stakeholders to assist in striking a balance between community concerns and recreational fishing activities. A Catfish working group has been established to understand the current stock status and provide advice on the future management of Catfish. The working group includes community and recreational fishing representatives (including RecFish SA). To inform the stock status of Catfish, a recreational FRDC project 1 undertook community fishing surveys to collect Freshwater Catfish specimens, biological data and catch information. This information will be used in conjunction with other fishery-independent data collected in the past decade from a range of fish monitoring and research projects to develop a preliminary understanding of the population status of this species in the lower River Murray. The report for the project is currently being finalised. Murray Cod Stock Enhancement Program - PIRSA is working with River Murray communities to investigate building up stocks of the species in the South Australian section of the River Murray. The current abundance of Murray Cod is significantly low, in comparison to historical levels, and there is a need to identify and develop methods that can ensure the sustainability of the population long term. RecFish SA is represented on the Murray Cod Stock Enhancement Working Group. Artificial reef project – PIRSA is working in partnership with RecFish SA to implement the SA Habitat Enhancement Project; a $600,000 commitment to implement an artificial reef to improve recreational fishing opportunities. This project will inform the development of further habitat enhancement projects and ongoing works for the restoration of habitats to support recreational fishing. RecFish SA is represented on the Habitat Enhancement Working Group. In 2010/11 an engagement project was undertaken by PIRSA to better understand what recreational fishing means to people and what future they want for their sector. Discussions generated consistent themes and issues of concern to recreational fishers, including sustainable fishing, ongoing access, funding and leadership, governance, education and promotion of the sector. Opportunities for incorporating 'grass roots' input from the recreational sector into fisheries management processes in South Australia include: • Public consultation opportunities on advertised occasions. • RecFish SA interactions - formal consultation at regular scheduled meetings between RecFish SA and PIRSA Fisheries and Aquaculture. • Participation on working groups regarding recreational enhancement. • Recreational fishing committees. These regional based committees are established by the recreational sector to represent the interests of recreational ‘Engaging recreational fishers and the community to integrate fishery-dependent and fisheryindependent data to inform management of a protected species, Freshwater Catfish (Tandanus tandanus) in the lower River Murray’ 1 Page 16 of 77 fishers. They are generally area based (e.g. West Coast). These committees are supported through extension services and liaison with RecFish SA. When management changes to recreational fishing rules are proposed, the following process occurs: • Targeted consultation with peak stakeholder groups i.e. RecFish SA, Recreational Fishing Committees, local councils, commercial industry associations and the conservation sector (as needed). • Public consultation, which includes public meetings and information sessions where required. • Feedback to RecFish SA (and other stakeholder groups as needed) on the outcomes/comments from public consultation and PIRSA’s consideration of the feedback. • Finalisation of management changes and community education (e.g. media releases, articles in PIRSA’s Fish Facts newsletter, website announcements, SA Recreational Fishing Guide app updates). 6 ECOSYSTEM IMPACTS The Fisheries Management Act 2007 requires that ecological impacts be identified and assessed as the first step in developing a management plan. The goals and objectives for the Recreational Fishery are found in Section 7. One of these goals directly relates to ecosystems – Goal 3: Recreational fishing impacts on the ecosystem are minimised - and includes a number of strategies. It is acknowledged this goal relates to the management of the fishery using an ecosystem-based fisheries management (EBFM) approach. The Act specifically requires that the following impacts are identified: • current known impacts of the fishery on the ecosystem • potential impacts of the fishery on the ecosystem • ecological factors that could have an impact on the performance of the fishery The ecological impacts associated with the fishery were identified in consultation with stakeholders and assessed through the process of conducting two ecologically sustainable development (ESD) risk assessments for recreational fishing (one marine and one freshwater). The National ESD Reporting Framework for Australian Fisheries (Fletcher et al, 2002) was used as a guide throughout this process. Risks and important issues in the fishery were identified in consultation with stakeholders and were prioritised by stakeholders at ESD risk assessment workshops using risk ratings from negligible to extreme. Risks identified as moderate, high or extreme have been summarised and management strategies to minimise these risks have been developed and are provided in Table 1. A full list of stakeholders that participated at the workshops is provided in the ESD risk assessment report. The report Ecologically Sustainable Development (ESD) Risk Assessment for the South Australian Recreational Fishing in South Australia provides detailed information about recreational fishing and the outcomes of the ESD risk assessments. A copy of the full ESD report can be found at the PIRSA Fisheries and Aquaculture website www.pir.sa.gov.au/fishing. Page 17 of 77 6.1 Strategies to address ESD risks Table 1: Summary of moderate to extreme risks identified through the 2011 and 2012 Recreational Fishery ESD risk assessment workshops2. Component ALL RETAINED SPECIES Risk/Issue Snapper King George Whiting Southern Calamari Southern Garfish Mulloway Australian Herring Description Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Management Plan Objective Management Plan Strategies 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate (High)# 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Risk Rating Moderate Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population High (Moderate)# Low (Moderate)# Moderate Western Blue Groper Risk of fishery impacts on breeding population Please see the full report ‘Ecologically Sustainable Development (ESD) Risk Assessment for the South Australian Recreational Fishing in South Australia’ for further details/description of the risks and risk ratings. 2 Page 18 of 77 Component Risk/Issue Yellowtail Kingfish Blue Swimmer Crab Pipi (Goolwa Cockle) Razorfish Black Bream Harlequin Fish Description Management Plan Objective Management Plan Strategies Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v) (vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) 1a 1a(vi) 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Risk Rating Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Risk of fishery impacts on breeding population Golden Perch Risk of fishery impacts on breeding population Congoli Risk of fishery impacts on breeding population High Moderate Yabby Risk of fishery impacts on breeding population Page 19 of 77 Component NonRetained Species General Ecosystem Impacts of Fishing Risk/Issue Description Management Plan Objective Management Plan Strategies Moderate 1a, 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Risk Rating Trout (exotic) Risk of fishery impacts on breeding population Small bodied fish Risk of fishery impacts on breeding population Moderate 3a 3a(i), 3a(ii), 3a(iv), 3a(v) Freshwater Turtle Risk of fishery impacts on breeding population Moderate 3a 3a(i), 3a(ii), 3a(iv), 3a(v) Water rats Risk of fishery impacts on breeding population Moderate 3a 3a(i), 3a(ii), 3a(iv), 3a(v) Moderate 1a 1b 1a(i)(ii)(iii)(iv)( v)(vi) 1b (i)(ii)(iii)(iv)(v)(i v) Fishing – Marine Risk of fishery impacts on the ecosystem Ghost fishing freshwater Risk of fishery impacts on the ecosystem Moderate 3a 3a(i)(iv)(v) Addition / movement of biological material caused by the introduction of non-endemic species (freshwater) Risk of fishery impacts on the ecosystem Extreme# 3a 3a(vi) Addition / movement of biological material caused by the introduction of endemic species (freshwater) Risk of fishery impacts on the ecosystem High# 3a 3a(vi) Introduced freshwater pests Risk of fishery impacts on the ecosystem 3a 3a(vi) Extreme Introduced native freshwater fish Risk of fishery impacts on the ecosystem 3a 3a(vi) High Page 20 of 77 Component Risk/Issue Community Description Risk Rating Management Plan Objective Management Plan Strategies Moderate Safety Importance of good safety practices to the recreational fishery 2d 2e 3b 2d(i)(ii) 2e(ii) 3b(ii) Relationship with community Importance of positive relationship with the community to recreational fishers Moderate 2c 4a 4b 2c(i)(ii)(iii)(iv) 4a(ii)(vi) 4b(i)(ii) Lifestyle Importance of lifestyle to the fishing industry High 2e 2f 2e(i) 2f(i)(ii) Contribution by the High fishery to the economic value of employment in regional centres 2c 2c(i)(ii)(iii)(iv) Regional Centres Contribution by the fishery to economic value in city centres 2c 2c(i)(ii)(iii)(iv) City Centres 4a Resourcing Importance of appropriate recreational fisheries resourcing 4a(i)(ii)((iv) (v) (vii) Importance of the High Fisheries Council in delivering outcomes for recreational fishing 4a Fisheries Council 4a(i )(ii)( (iv)( vii) High PIRSA Importance of appropriate policy and management by PIRSA 4a 4b 4a(i)(ii)(iii)((iv)( v)(vi)(vii) 4b(i)(ii) Importance of appropriate policy and management by PIRSA High Policy & Management 4a 4b 4a(i)(ii)(iii)((iv)( v)(vi)(vii) 4b(i)(ii) High Research – Freshwater Importance of appropriate research undertaken to manage the recreational fishing sector and freshwater fish 1a 1b SA Govt: DEWNR Importance of responsible governance by SA DEWNR to the recreational fishing sector Governance Moderate Extreme 2d Extreme Page 21 of 77 2d(i) Component Risk/Issue Other Government Agencies (Aust Govt: DotE, AFMA/DAFF, DTEI, SA Water, EPA, FRDC, LGAs and SATC External factors affecting performance of the fishery Description Importance of responsible governance by other agencies to the recreational fishing sector Management Plan Objective Management Plan Strategies Moderate 2d 2d(i)(ii) High 2e 3b 2e(ii) 3b(ii) High 2c 4a 4b 2c(ii) 4a(i)(ii)(iii)((iv)( v)(vi)(vii) 4b(i)(ii) High 4a 4b 4a(i)(ii)(iii)((iv)( v)(vii) 4b(i)(ii) 4a 4b 4a(i)(ii)(iii)((iv)( v)(vii) 4b(i)(ii) 4a 4b 4a(i)(ii)(iii)((iv)( v)(vii) 4b(i)(ii) Risk Rating Codes of Conduct/Educ ation (recreational fishing community) Importance of appropriate Codes of Conduct/Education to the recreational fishing sector Communicatio n/participation (recreational fishing community) Importance of Communication/partici pation to the recreational fishing sector Peak Body (RecFish SA) (recreational fishing community) Importance of the Peak Body to the recreational fishing sector RecFish Australia Importance of national governance – RecFish Australia to the South Australian recreational fishing sector SA RF Committees Importance of governance of SA Recreational Fishing Communities to the recreational fishing sector Moderate Other NGO’s Importance of NGO interests to the recreational fishing sector 4a 4b 4a(ii)(v) 4b(i)(ii) Moderate 3c 3c(i) Physical Impact of environmental and physical factors on recreational fishing Water quality Marine Impact of water quality in the Marine environment on Moderate 3c 3c(i) Moderate High Page 22 of 77 Component Risk/Issue Description Risk Rating Management Plan Objective Management Plan Strategies 3c 3c(i) recreational fishing Water quality Freshwater Impact of water quality in the freshwater environment on recreational fishing Habitat modification Marine Impact of habitat Moderate modification in the marine environment on recreational fishing 3c 3c(i) Habitat modification Freshwater Impact of habitat modification in the freshwater on recreational fishing 3c 3c(i) Moderate 3c 3c(i) Moderate 2d 2d(i) 2d 2d(i)(ii) 3c 3c(i) 2b 2b(i)(ii)(iv) 3c 3c(i) 3c 3c(i) Impact of exotic Exotic species species in Freshwater - Freshwater on recreational fishing Climate change Impact of climate change on recreational fishing Impact of socioSocio/Economi economic drivers on c recreational fishing Access Impact of reduced access on recreational fishing Impact of reduced Marine parks access by marine (No-take parks on recreational zones) fishing Moderate# Extreme Extreme High Extreme Commercial fishers Impact of reduced access by commercial fishers on recreational fishing Moderate Aquaculture Impact of reduced access by Aquaculture on recreational fishing High Eco-tourism Impact of reduced access by Eco-tourism on recreational fishing Moderate Page 23 of 77 Component Risk/Issue Description Risk Rating Management Plan Objective Management Plan Strategies Impact of reduced access by nonextractive users on recreational fishing Moderate 3c 3c(i) Non-extractive users Impact of reduced access by Aquatic reserves on recreational fishing Moderate 3c 3c(i) Aquatic reserves Impact of reduced access by Commercial jetties/piers on recreational fishing Moderate Commercial jetties/piers 3c 2d 3c(i) 2d(i)(ii) Moderate 2d 2d(i)(ii) Defence areas Impact of reduced access by Defence areas on recreational fishing Moderate 2d 2d(i)(ii) Shipping lanes Impact of reduced access by Shipping lanes on recreational fishing Moderate 2d 2d(i)(ii) Impact of reduced access by Industrial/powe Industrial/power r stations etc stations etc on recreational fishing 7 GOALS AND OBJECTIVES As set out in Section 7 of the Fisheries Management Act 2007 (the Act), one of the ‘Objects of the Act’ is to protect, manage, use and develop the aquatic resources of the State in a manner consistent with ecologically sustainable development. The Act also requires that management plans be consistent with these objects. A number of biological, social and economic factors are identified in the ‘Objects of the Act’ that must be balanced in pursuing ecologically sustainable development. However, it is specified that the primary consideration is to avoid the over-exploitation or endangerment of resources. The four key goals for the Recreational Fishery are set out below are linked to the operational objectives for the fishery set out in Table 2. The goals of this plan are consistent with ‘Objects of the Act’ and are consistent with other South Australian fishery management plans. The performance indicators and reference points for each objective are provided to allow for the assessment of this management plan in meeting the identified goals. Page 24 of 77 7.1 Goal 1 – Ensure that recreational fishing resources are harvested within ecologically sustainable limits This goal relates to ensuring that species targeted by recreational fishers are managed to ensure they are harvested sustainably and that adequate information exists and is collected to ensure this occurs. The objectives (see Table 2) in this management plan in relation to sustainability are: • Manage total catch and effort across the sector to ensure species are harvested at sustainable levels. • Sufficient information is collected to manage fishing activities to sustainable levels. These objectives aim to ensure that the recreational resources are harvested within sustainability limits. 7.2 Goal 2 – Optimal utilisation and equitable distribution of recreational fishing resources This goal relates to the economic and social benefits derived from recreational fishing, in that that the allocation and fishing activities are managed to provide a benefit to the community. The objectives (see Table 2) of this management plan in relation to these benefits within the constraints of ecological sustainability are: • Allocate access to fishery resources and manage shares to deliver optimum utilisation and equitable distribution. • Collection of economic and social metrics for recreational fishing and implement the use of these measures to inform management of the sector. • Ensure adequate access to infrastructure needed for successful operation of fishing activities. • Maximise cultural, recreational and lifestyle benefits (including health benefits) of fishing for those who participate in fishing activities. • Maximise fishing experience within allocated shares. The objectives and strategies under this goal aim for the fishery to operate at a level that is ecologically sustainable while meeting economic and social outcomes that contribute to vibrant regions and the health and wellbeing of South Australians. Optimising the use of the fishery is addressed in the objectives and strategies in terms of maintaining equitable access to the resource for the recreational sector and other sectors and fostering recreational fishing. The recreational sector takes a significant proportion of many shared species, and with an estimated 277,027 recreational fishers in South Australia (Giri et al, 2015) interactions between commercial and recreational fishers is inevitable. At times these interactions lead to conflict, as access to a finite resource is highly valued. The allocation framework described in this plan (see Section 9) will go some way to alleviating this conflict; however, managing the fishery to provide fair and reasonable access for all is still a major challenge for the management of this fishery. Page 25 of 77 7.3 Goal 3 – Recreational fishing impacts on the ecosystem are minimised This goal relates to the management of the fishery using an ecosystem-based fisheries management (EBFM) approach. The objectives of this management plan (see Table 2) in relation to EBFM are: • Minimise fishery impacts on bycatch species and the ecosystem. • Minimise fishery impacts on fisheries habitat. • Minimise external impacts on ecosystem. • Avoid the incidental mortality and interactions with threatened, endangered and protected species. The need to minimise the impacts of recreational fishing on the ecosystem, habitat and bycatch species (including threatened, protected and endangered species) is acknowledged in this plan and the Fisheries Management Act 2007 objectives. 7.4 Goal 4 – Effective, efficient and participative management of recreational fishing This goal relates to co-management of the fishery, planning of management activities, and transparency to the recreational sector and community of the decision making and management of recreational fishing. The objectives of this management plan (see Table 2) in relation to co-management, planning and communication are: • Improve the ability of fishers to participate effectively in fisheries management advisory processes. • Ensure appropriate mechanisms exist for fisher involvement in development of fisheries management advice. • Ensure transparent decision-making process by fisheries agencies. • Maximise stewardship of fisheries resources. The key intention of this goal is to ensure that recreational fishers have opportunities to be involved in developing and adopting management arrangements and ensuring that these arrangements are complied with. Changes to the recreational fishery management arrangements also need to take into consideration the broader community’s economic, cultural and social issues. Page 26 of 77 Table 2: Management goals, objectives, strategies and reference points for management of recreational fishing. Objective Strategies ESD risk addressed Performance Indicator Description Reference Point General performance indicators for selected species as detailed in the harvest strategy General indicators are derived Refer to Section 8 – Harvest from recreational catch and Strategy effort information and include total catch and species specific catches Goal 1: Ensure the recreational fishing resources are harvested within ecologically sustainable limits 1a Manage total catch and effort across the sector to ensure species are harvested at sustainable levels. 1b Information is collected sufficient to manage fishing activities to sustainable levels. 1a(i) Regulate size at which fish may be captured Fishery impacts on ‘all retained using minimum and/or maximum size limits species’ Governance Research – Freshwater 1a(ii) Regulate catch limits through effective bag, boat and possession limits 1a(iii) Apply spatial and temporal restrictions to protect fish species during critical stage of life cycle 1a(iv) Regulate permitted fishing methods 1a(v) Understand and minimise discard mortality to minimise impacts on fishery stocks and bycatch species 1a(vi) Where a species is considered at risk, introduce appropriate measures (i.e. strategies listed above and/or protect the species until recovery is shown) 1b(i) Obtain adequate and regular biological Fishery impacts on ‘all retained information for key and selected other species species’ 1b(ii) 1b(iii) Fishery impacts on ‘non-retained Undertake and further refine stock assessment species methods for recreational species as identified Governance Research – Freshwater through the strategic research plan and reviews of the commercial fishery’s harvest strategies Review and update the strategic research and monitoring plan regularly 1b(iv) Explore opportunities for additional costeffective recreational catch monitoring as required 1b(v) Undertake regular recreational fishing surveys to ensure collection of recreational fishing catch/effort data to be incorporated into stock assessments Stock assessment and stock Good quality fishery data is status reports produced to a high essential to on-going standard and on schedule monitoring of fishery status Sector participation in research projects as required Proposed research schedules and deliverables achieved Regular reviews of research programs not undertaken Recreational survey undertaken as a minimum every 5 years Status of key species is reported in stock assessment reports, National and state status reports Recreational participation in research projects where suitable Page 27 of 77 Objective Strategies 1b(vi) ESD risk addressed Performance Indicator Description Reference Point Catches managed within allocations and changes in shares detected and acted on appropriately Adjusting allocations or restricting effort to maintain shares is unlikely to occur within the initial years Catch shares are considered against the allocated shares when the data for all sectors is available Status of key species is assessed and reported Goal 2: Optimal utilisation and equitable distribution of recreational fishing resources 2b Allocate access to fishery resources and manage shares to deliver optimum utilisation and equitable distribution 2c Increase the flow of economic and social benefit from the fishery to the broader community 2b(i) Resource allocation between sectors provided External factors affecting in this management plan performance of the fishery- Access and Commercial fishers 2b(ii) Manage catches of recreational sector within allocated shares 2b(iii) Integrate information relating to Aboriginal traditional fishing as it becomes available, including adjustment of shares accordingly 2b(iv) Where shares require adjustment, processes are implemented as per the Management Plan 2c(i) Improve measures of economic value of Community- Regional centres and Provision of publically recreational fishing City centres accessible recreational fishing information through website, correspondence, media releases, FishFact newsletters, Fishcare Communicate positive sustainability and volunteer program, RecFishSA economic outcomes of the sector to the publications and compliance broader community officers 2c(ii) 2c(iii) Develop and maintain positive relationships with regional communities 2c(iv) Identifying and adopting measures for determining economic value when available 2c(v) Consider potential impacts the fishery may have on Aboriginal cultural practices (in particular Aboriginal cultural fishing) and traditional knowledge systems (specifically traditional fishing knowledge) as information becomes available At the time of writing this management plan, recreational and Indigenous fisheries have no reliable and acceptable methodology or mechanisms to measure their economic value (direct and indirect) to Australians (FRDC 2013). A national FRDC Adoption of measures for project – ‘Measuring the determining the recreational economic value of economic value recreational fishing at a national level’ is currently being undertaken, it likely the outcomes from this research will assist in meeting strategy 2c(iii) in conjunction with recreational fishing surveys At the review of the plan, consider potential impacts the fishery may have on Aboriginal cultural practises (in particular Aboriginal cultural fishing) and traditional knowledge systems (specifically traditional fishing knowledge) and incorporated into the plan, where appropriate. This may include: • • Page 28 of 77 Identifying ‘sea country’ relevant for this fishery Support for cultural Publically available information on positive outcomes of the recreational sector Economic measures developed, implemented and monitored once established Objective Strategies ESD risk addressed Performance Indicator Description practices included management considerations 2d Ensure adequate access to infrastructure needed for successful operation of fishing activities, within the constraints of ecological sustainability 2d(i) 2d(ii) Gaps in availability of infrastructure needed by recreational fishers are identified by PIRSA and RecFish SA and are jointly communicated to relevant authorities/bodies 2e Maximise cultural, recreational and lifestyle benefits (including health benefits) of fishing for those who participate in fishing activities, within the constraints of ecological sustainability 2e(i) Consideration of cultural, recreational and Community- Lifestyle lifestyle benefits are made when management arrangements are being considered or Community- Safety reviewed 2e(ii) Recreational fishers/ RecFish SA to undertake/promote safe fishing practices, including the national code of conduct in relation to ‘Caring for our own safety and the safety of others when fishing’ 2f 2f(i) Identify relevant fishing experiences to species, Community- Lifestyle gear, location etc 2f(ii) Consider fishing experience when new/modification of management arrangements are being considered Maximise fishing experience within ecological sustainable limits and allocated shares Where appropriate, influence other External factors affecting management processes that impact on the performance of the fishery- Access, adequate access to infrastructure Commercial jetties/piers Level of satisfaction fishers have with access to different types of fishing infrastructure Community- Safety Page 29 of 77 Level of satisfaction recreational fishers have with their fishing activity Perceived importance of fishing activities to fisher's life Level of satisfaction recreational fishers have with their fishing activity Reference Point in It is acknowledged that infrastructure access is outside the scope of this management plan yet PIRSA and RecFish SA should endeavor to participate in external processes as appropriate to influence outcomes for the benefit of recreational fishers Fisher survey - 50% of fishers are dissatisfied with any of the types of infrastructure Fisher survey - <50% of fishers indicate they are neutral or highly satisfied with their fishing overall, but this proportion is increasing Fisher survey - A declining proportion of fishers are indicating they are satisfied with their ability to achieve the benefits most important to them Goal 3: Recreational fishing impacts on the ecosystem are minimised 3a Minimise fishery impacts on bycatch species and the ecosystem. 3b Minimise fishery impacts on fisheries habitat. 3a(i) Regulate gear types, construction material and Fishery impacts on ‘non-retained mode of operation to minimise bycatch as species appropriate General Ecosystem Impacts of Fishing- Ghost fishing freshwater 3a(ii) Develop methods to quantify impact of recreational fishing activities on discarded bycatch through targeted research and ongoing monitoring General Ecosystem Impacts of Fishing - Addition / movement of biological material caused by the introduction of non endemic species (freshwater) Quantification of bycatch Minimising unwanted or associated with key gear types discarded bycatch to lowest and activities possible levels and minimise release mortality Estimates of discard rates and discard mortality Aim is to minimise impacts of recreational fishing on the Number of reported compliance ecosystem breaches of relevant regulations. Some initiatives that could be Number of untagged gear further identified in compliance reports developed/communicated include the use of litter/hook line and sinker bins for recreational rubbish, encouraging use of non lead sinkers/bird impacts, illegal dumping to create artificial reefs 3a(iii) Conserve key habitats utilised by fishery resources 3a(iv) Promote educational material on how to minimise impact to by-catch 3a(v) Identify and develop educational material to minimise recreational fishing activities that can have an impact on ecosystems 3a(vi) Implement the ‘Policy for the release of aquatic resources’, such that stocking/translocation of species is undertaken so that a risk-based assessment process to evaluate and regulate such translocations is undertaken 3b(i) Maintain appropriate regulations regarding the Fishery impacts on ‘all retained Risk ratings from regular use of recreational fishing gear species’ ecological risk assessment 3b(ii) Fishery impacts on ‘non-retained Opportunistic independent research Promote the adoption of recreational fishing species codes of conduct and good fishing practices General Ecosystem Impacts of Fishing Targeted research and ongoing monitoring undertaken on quantify impact of recreational fishing activities on discarded bycatch Communication strategy for recreational sector considers identified ecosystem impacts The number of untagged gear in compliance reports remains low Note: this objective also links closely to objective 3d (TEPS) fishery Increases in number of risks to ecosystem rated as moderate or higher during the risk assessment Community- Safety 3c Minimise external impacts on ecosystem. 3c(i) Where appropriate, influence other External factors affecting None measured management processes that impact on the performance of the fisheryecosystem Physical, Water quality – Marine, Water quality – Freshwater, Habitat modification – Marine & Freshwater, Exotic species – Freshwater, Climate change, Socio/Economic, Access, Marine parks (No-take zones), Aquaculture, eco- tourism, No-extractive users, Defence areas, Shipping lanes, Industry power stations Page 30 of 77 It is acknowledged that NA management of the risks identified is outside the scope of this management plan yet PIRSA and RecFish SA should endeavour to participate in external processes as appropriate 3d Avoid interaction and incidental mortality with threatened, endangered and protected species. 3d(i) 3d(ii) Continue to educate recreational fishers about Fishery impacts on ‘non-retained Where interactions with interactions with threatened, endangered and species threatened, endangered and protected species (TEPS) protected species are identified management action is considered Where interactions are identified, develop management measures to avoid interactions with threatened, endangered and protected species as required Interactions of recreational fishers and TEPS are identified through public reporting, and ESD risk assessments Where interactions with threatened, endangered and protected species are identified management action is considered Support RecFish SA to participate and function External factors affecting Engagement with RecFish SA to Annual communications within the co-management framework of the performance of the fishery- Aquatic effectively participate in fisheries protocol between RecFish SA fishery reserves management processes body and PIRSA outlines a variety of roles and Governance Communication protocol responsibilities between PIRSA and RecFish SA Promote stakeholder input to the management Community -Relationship with annually developed and delivery of the fishery, through co-management community of fisheries management processes and communication strategies activities against communication protocol objectives Communication protocol is reviewed, agreed and implemented annually Goal 4: Effective, efficient and participative management of recreational fishing 4a Improve the ability of fishers to participate effectively in fisheries management advisory processes 4a(i) 4a(ii) 4a(iii) 4a(iv) Develop and implement protocol, with annual review communication Representative participation from RecFish SA in co management of the recreational fishery Level of currency, independence and accessibility of information about the fishery Ensure appropriate mechanisms exist for fisher involvement in development of fisheries management advice 4a(v) In consultation with RecFish SA identify opportunities to build capacity and access resources critical to ensuring they can successfully contribute to fisheries management 4a(vi) Ensure fisheries information is available in a timely and publicly accessible manner Management decision outcomes for the recreational fishery are communicated with the recreational fishery Active RecFish SA participation in any proposed recreational management changes Publically available information on recreational fishing and management is decreasing from previous year Feedback to recreational fishers on management decisions is not given or infrequently given >45% of fishers indicate they are dissatisfied with the level of consultation, but this percentage is declining over time, suggesting that there is positive change but continuing action is needed 4a(vii) Consult with RecFish SA with sufficient time for them to gain wider stakeholder input where possible 4b Ensure transparent decisionmaking process by fisheries agencies 4b(i) Communicate decision making processes on Community reviews of recreational fishing management community arrangements and commercial activities that impact on recreational fishing -Relationship with (FishFacts newsletter, Releases, website) Media Documentation of fisheries management decision making Page 31 of 77 Publically available information on recreational fishing and management is decreasing from previous year 4c Maximise stewardship fisheries resources of 4b(ii) Information on fisheries management is available in timely and publicly accessible manner 4c(i) Undertake annual compliance risk assessment 4c(ii) Develop and implement management arrangements that are clear and uncomplicated so as to promote voluntary compliance and assist with successful enforcement 4c(iii) 4c(iv) Encourage the community to report fisheries offences to the Fishwatch number Communication strategy developed to promote recreational fishing rules and address compliance risk assessment high risk areas processes Fishery impacts on ‘all retained species’ 80% or < of management decisions are published in publically available forums Compliance risk assessment Achieving sustainable undertaken annually management of fisheries requires fishers to comply Fishery impacts on ‘non-retained Number of high-rated risks with regulations regarding species Proportion of fishers who believe fishing activities, and to be General Ecosystem Impacts of that, overall, most fishers comply responsible for their fishing Fishing with fishing rules and regulations activities. A key objective of fisheries management is Number of calls to Fishwatch therefore to ensure fishers are aware of their social Trends in the number of responsibilities and are infringements motivated to comply with these. This type of awareness and sense of obligation is often referred to as ensuring fishers feel they are 'stewards' of the fishery's resources (Triantafillos et al, 2014) Recreational fishery compliance risk assessment is undertaken annually PIRSA website information and recreational fishing app is updated less the annually Number of prosecutions over 3 years does not increase significantly Infringements rapidly over time increasing Decline (compared to previous survey) in the proportion of recreational fishers who agree with the statement “overall, most recreational fishers comply with fishing rules and The compliance risk regulations” assessment provides the opportunity to assess compliance status in fishery and prioritise work functions on high risk areas to fishery Page 32 of 77 8 HARVEST STRATEGY 8.1 Overview “A harvest strategy is a framework that specifies the pre-determined management actions in a fishery for defined species (at the stock or management unit level) necessary to achieve the agreed ecological, economic and/or social management objectives”. (Sloan et al, 2014) This harvest strategy provides a structured framework for decision-making that specifies predetermined management actions necessary for the South Australian recreational fishery to achieve the ecologically sustainable development (ESD) objectives of the Fisheries Management Act 2007. Consistent with national guidelines (Sloan et al, 2014), this harvest strategy brings together all of the key scientific monitoring, assessment and management elements to form an integrated package to make decisions about the level of fishing intensity that should be applied to recreational fishing resources. Monitoring of the fishery is achieved through various methods which are dependent on the suitability for assessment of each species. The indicators, operational objectives and trigger reference points and/or limit reference points are set out in the various commercial management plans. Recreational fishing surveys are undertaken at a minimum every five years in South Australia. The surveys provide information to evaluate the size and impact of recreational fishing. In the years where recreational information is available, this information is included in the reported status reports, fishery assessment reports and used to monitor catches against allocated shares. The recreational fishing survey provides statistically robust estimates of: a) the state-wide and regional participation levels and demographics of SA private-dwelling residents who recreationally fished in SA; b) recreational fishing effort and catches (harvested and released), by species. They are undertaken in a manner that allows the results from previous survey years to be compared with the results from the most recent survey. They generally consist of: a) a telephone interview screening survey of randomly chosen households, to ascertain participation and demographics of recreational fishers in the 12 months prior to the survey. Then some fishing households are randomly selected to participate in the 12-month diary survey where household catches (numbers of harvested and released fish) and fishing effort are monitored. b) supplementary on-site surveys which are undertaken to provide information on harvested lengths of key species, for later expansion to total harvest weights. c) two short surveys at the completion of the 12-month survey. The first measures the additional fishing effort from originally non-intending fishers, and the second determines the attitudes and motivation of the previously surveyed fishing households. Catch information for commercial sectors is available annually and provides the opportunity to review the status of species more frequently. Page 33 of 77 Consistent with the Fisheries Management Act 2007, the principle of ecological sustainability has priority over the other principles of ESD; hence the sustainability aim is the primary assessment focus for the harvest strategy. Assessment outcomes lead to an annual stock status being determined for the fishery, which is reported in the annual stock assessment report, national and state status reports. Recreational triggers for decision making are changes in: • Allocation • Sustainability These two factors are often intertwined in the recreational fishery. Consistent with the national agreed reporting framework for stock classification the classifications used in this section are: • Transitional depleting stock: Biomass is not yet recruitment overfished, but fishing pressure is too high and moving the stock in the direction of becoming recruitment overfished. • Transitional recovering stock: Biomass is recruitment overfished, but management measures are in place to promote stock recovery, and recovery is occurring. • Sustainable stock: Biomass (or biomass proxy) is at a level sufficient to ensure that, on average, future levels of recruitment are adequate (i.e. not recruitment overfished) and that fishing pressure is adequately controlled to avoid the stock becoming recruitment overfished. • Overfished stock: The stock is recruitment overfished and current management is not adequate to recover the stock, or adequate management measures have been put in place but have not yet resulted in measurable improvements. Where transitional depleting and recovering have been grouped they are collectively referred to as transitional. 8.2 Objectives of the harvest strategy An objective of this harvest strategy is to 1. Ensure long-term sustainable harvest of recreational species, in particular where sustainability issues are identified through commercial (or other) stock assessment processes, changes to the recreational sector are undertaken correspondingly to the commercial sector in line with sectors allocated shares 2. Maintain recreational catches within the allocated shares. The process for reviewing and/or adjusting shares will be undertaken in accordance with the limits specified in Section 9. The catches by relevant sectors will be presented within the stock status/ or fishery assessment report in years when available 3. Maximise fishing experience within ecological sustainable limits and allocated shares 8.3 Biological objectives, performance indicators and trigger/limit reference points The biological objectives, performance indicators and limit reference points for assessing stock status for the key recreational species and commercially important species are outlined in the various commercial management plans. These plans outline Page 34 of 77 the performance indicators and trigger/limit reference points which are used in assessing stock status (i.e. sustainable, transitional, overfished). In addition they are used to determine/trigger the need to review/change management arrangements for the species. Trigger reference points define the values of a performance indicator for a fish stock or fisheries management unit at which a change in management is considered or adopted. Limit reference points define the values of a performance indicator for a fish stock or fisheries management unit that is no longer considered acceptable. 8.4 Decision rules This plan outlines the management response for the recreational sector when a limit/trigger reference points is breached. The commercial management plans set out decision rules for reviewing the commercial sectors management arrangements when the limit/trigger reference points are breached. Harvest strategies should deal with all situations, including instances when the stock becomes depleted through overfishing or unfavourable environmental conditions (or combination of both), and needs to be recovered. In the case where a species’ trigger/limit reference points are breached and the status of the species is determined to be transitional or overfished, a process for the recreational sector (outlined below) will be considered to ensure sustainability of the fishery. The need for a change to the recreational sector will need to be assessed (i.e. has fishing effort been substantially shifted by only one sector, such as commercial longline effort for Snapper in 2009 or are there some environmental drivers or other drivers changing the status of the species or a combination of both?). As the recreational fishing survey information is only available every five years, in most circumstances where this data is not available a precautionary and risk based approach will be required to assess the need for a recreational management change. When the need for a recreational management change is identified, the recreational management changes will be appropriate for maintaining the allocations between the sectors and ensure sustainability. Sustainable Transitional Overfished No management change required Consider stock impacts and recreational impact (where survey data is datedlikelihood consideration) • Management change required- recreational impact/allocation consideration • No management change required- unlikely recreational impact/allocation consideration Consider closing the fishing for that species for predetermined time or develop a suitable alternative to provide for recovery. Determine monitoring strategy and develop and agree to rules for reopening. Figure 2: Process for the recreational sector where triggers are triggered Page 35 of 77 8.4.1 Process for considering and developing revised recreational fishery management arrangements Consideration of the fishery status report and/or the stock assessment reports will be undertaken within the existing co-management framework. Where the species is transitional or overfished the following process will be used for considering and developing revised recreational fishery management arrangements: • The need for a change to the recreational sector to be assessed • Identify management targets/what is to be achieved by the changes • Targeted consultation with peak stakeholder groups i.e. RecFish SA, RFCs, local councils, commercial industry associations and the conservation sector (as needed) • Public consultation, which also includes public meetings and information sessions • Feedback to RecFish SA (and other stakeholder groups as needed) on the outcomes/comments from public consultation and PIRSA’s consideration of the feedback • Finalisation of management changes and community education (Media release/s, article in Fish Facts newsletter, website announcement, Recreational fishing app updated etc) • Development of a monitoring/review framework for the revised changes in consultation with RecFish SA. 8.5 Potential management options for revised recreational fishery management arrangements In achieving the longer term objectives of this and future harvest strategies it is difficult to identify the appropriate management response to breaches of trigger reference points given the complexities of this fishery. There is a range of management tools available to achieve the operational objectives of this harvest strategy, which include: • bag limits • size limits • spatial and temporal closures • gear modifications. The process outlined in Section 8.4.1 will be used to determine the most appropriate mix of controls in the circumstances to achieve the specified management target. In developing revised recreational fishery management arrangements, the following will also be considered/identified: • the allocated share of the species and the commercial management changes • relevant fishing experiences to species, gear, location etc. associated with the relevant species being considered. 8.6 Species not covered by a commercial fishery management plan For the species taken by the recreational sector and which are not covered by the commercial fishery management plans, there is currently a low level of recreational take. These species will be examined during the ESD risk sssessment process undertaken every 5 years as part of the management plan review, and those species Page 36 of 77 assessed as moderate, high or extreme risks will be considered using the process outlined in Section 8.4.1. 8.7 Review of harvest strategy A review of this management plan may be conducted at any time in line with the Act. Further information on reviewing the management plan is in Section 3. A review of the harvest strategy would be conducted under Section 49 of the Act as it is part of this management plan. 9 ALLOCATION OF ACCESS BETWEEN SECTORS 9.1 Current allocated shares of the resource The Fisheries Management Act 2007 provides that a management plan must specify the share of the fishery to be allocated to each fishing sector under the plan (43(2)(h)). The Act also provides that, in determining the share of aquatic resources to be allocated to a particular fishing sector under the first management plan for an existing fishery, the share of aquatic resources to which that fishing sector had access at the time the Minister requested the preparation of the plan (based on the most recent information available to the Minister) must be taken into account (43(3)). The Minister formally requested preparation of this management plan on 17 June 2010. Therefore, this plan must take into account the share of aquatic resources that the recreational sector, commercial sectors, and the Aboriginal traditional sector had access to at that time (see Appendix 3 for further details of these sectors). The best available information regarding sector shares at that time was the catches from 2007/08 recreational fishing survey (see Appendix 2 which further details the information used to allocation shares). The key recreational species have already been allocated between the three fishing sectors in existing commercial fishery management plans. When determining the share of aquatic resources to be allocated, it is important to clarify the temporal and spatial extent of the fishery to which the allocation applies. Shares for a species may be allocated in a number of ways including: • using variations in management arrangements • biological or stock boundaries • a single allocation across the region • environmental factors e.g. flood events in Lake Eyre and recognising past allocation agreements. See Appendix 4, Appendix 5 and Appendix 6 for further details. Recreational fishing is fishing other than commercial fishing or Aboriginal traditional fishing is fishing, where the catch is released or used for personal consumption or taken for sport. Many Aboriginal people participate in recreational fishing, as well as Aboriginal traditional fishing, and have a strong cultural connection to sea country. Aboriginal recreational fishers are considered part of the broader recreational fishery. There is diversity in the recreational fishing community, including strong connections from all cultural backgrounds. See Appendix 3 for further details on the sectors related to recreational fishing allocations. Page 37 of 77 Recreational species are taken by both South Australian resident and non-resident (interstate and overseas visitors) recreational fishers. Information on the catch by nonresidents is not routinely collected and there is currently no cost-effective method to capture this information. This information has only been collected once through the 2000/01 national recreational survey. For this reason the allocation is based on recreational catch estimates from South Australian residents only. Future recreational fishing surveys will be undertaken in a manner to ensure that the data can be compared to ensure allocations are managed consistently. Table 3: Shares of recreational species allocated to the commercial, recreational and Aboriginal Traditional fishing sectors. Species Aboriginal Recreational traditional Commercial Abalone (1) 99.74% 0.15% 0.11% Australian Herring (2) 56.50% 42.50% 1% Australian Sardines (3) 100.0% 0% 0% Australian Anchovy (3) 100.0% 0% 0% Balmain Bug (4) Spencer Gulf 100.0% 0% 0% 50.6% 48.4% 1% 70% 29% 1% Bronze & Dusky Whaler Shark (2) 73.7% 25.3% 1% Flathead 12.3% 86.7% 1% 99.00% 0.09% 0.01% Golden Perch (Lake Eyre) Non-Flood (6) 0% 90% 10% Golden Perch (SAMDB) (7) 71.6% 27.4% 1% Greenback Flounder (7) 88.7% 10.3% 1% King George Whiting (2) 50.50% 48.50% 1% King Prawns (3) Spencer Gulf 100.0% 0% 0% Marine (2) 54.2% 44.8% 1% L&C (inland) (7) 98.9% 0.55% 0.55% Marine (2) 19.9% 79.1% 1% L&C (inland) (7) 71.4% 27.6% 1% Pipi (7) (area based only in Coorong region) 73% 26% 1% Sand Crab (2) 85% 14% 1% Snapper (2) 81% 18% 1% 49.5% 49.5% 1% Black Bream Blue Swimmer Crab (5) Golden Perch (Lake Eyre) Flood (6) Mullet spp. Mulloway Snook (2) Page 38 of 77 Southern Calamari (2) 61.6% 37.4% 1% Southern Garfish (2) 79.5% 19.5% 1% Southern Rock Lobster (8) 95.5% 3.5% 1% Trevally 47.34% 51.65% 1% Vongole (Mud Cockle) spp. (2) 99.70% 0.15% 0.15% 78% 21% 1% 0.12% 98.88% 1% Yellowfin Whiting (2) Yellowtail Kingfish Sources of existing allocations (1) Management Plan for the South Australian Commercial Abalone Fishery 2012 Management Plan for the South Australian Commercial Marine Scalefish Fishery 2013 (3) Management plan for the South Australian Commercial Marine Scalefish Fishery, Part B– management arrangements for the taking of Sardines (4) Management Plan for the South Australian Commercial Spencer Gulf Prawn Fishery (5) Management Plan for the South Australian Commercial Blue Swimmer Crab Fishery 2012 (6) Management Plan for Lake Eyre Basin Fisheries 2013 (7) Draft Management Plan for the South Australian Commercial Lakes and Coorong Fishery 2014 (8) Management Plan for the South Australian Commercial Northern Zone Rock Lobster Fishery 2014 and Management Plan for the South Australian Commercial Southern Zone Rock Lobster Fishery 2013 (2) 9.2 Species allocated Not all recreational species are allocated within this management plan. Only species for which an allocation already exists and highly valued recreational species have been allocated. Not all species allocated in Table 3 above are individual species; some include a number of similar species grouped together. This is because some species are difficult to identify and there may be misreporting, or non-differentiation by species by both commercial and recreational fishers. Where multiple species are included within a single species, the species name is followed by the abbreviation, ‘spp.’. (e.g. Mullet spp.). Details of the species names and groups are provided in Appendix 7. 9.2.1 Review of species Future consideration will be given to determining allocations for those species yet to be allocated when the plan is reviewed and will be consistent with the Allocation Policy. For a species to be allocated, the need to be allocated will be identified through consultative processes with all the sectors. Two species, Western Australian Salmon and Murray Cod, have been identified for further work in determining the shares for these species, due to access (management arrangements in place at the time) and catch requiring further consideration. More detail on these species are provided below. These species will be considered based on the share at the time the management plan was requested: the share to which the sectors had access at 17 June 2010. However, it is important to note that for most species the allocated shares is based on the 2007/08 catches, which is the time period where all sectors catch were available. Page 39 of 77 9.2.1.1 Western Australian Salmon Below is an excerpt from the Management Plan for the South Australian Commercial Marine Scalefish Fishery. A review of the management arrangements and allocation of resource shares between fishing sectors will be completed for Western Australian Salmon before the first major review of the Management Plan for the South Australian Commercial Marine Scalefish Fishery in 2018: Two types of commercial Western Australian Salmon quota were originally issued in 1984; 800 tonnes of transferable special quota and a non-transferable maximum catch limit of 20 tonnes per year on net licences with access to the MSF, which was issued as an aggregate catch limit of 300 tonnes. A portion of the special quota is held on a Miscellaneous Fishery licence. A number of historical netting closures were introduced from the late 1950s to 2000 for a range of fisheries management reasons and additional netting closures were introduced as part of the restructure of the MSF in 2005. Over time, netting closures have reduced the availability of areas for the commercial harvest of Western Australian Salmon, as it is largely a net capture fishery. The catch data available for 2007/08 do not reflect the existing access arrangements between the commercial and recreational sectors of the fishery, or within the components of the commercial sector. The 2007/08 catches (kg) are provided in Table 4 below. Table 4: 2007/08 catches (Kg) of Western Australian Salmon by sector and area. Fishery Catches of Western Australian Salmon (Kg) Marine Scalefish Fishery 105,317 Southern Zone Rock Lobster 3 Northern Zone Rock Lobster 10 Miscellaneous 0 Lakes and Coorong (Marine waters) 31 Lakes and Coorong (inland waters of Lakes and Coorong) 6,269 Recreational (marine waters) 83,395 Recreational (inland waters of Lakes and Coorong) 7,907 The management arrangements in place for Western Australian Salmon were established some 30 years ago and, as such, need to be reviewed to consider whether they are comprehensive enough to provide for the future sustainable management of the Western Australian Salmon fishery. Western Australian Salmon has therefore not been allocated in this management plan. 9.2.1.2 Murray Cod The South Australian Recreational Fishing Survey 2007/08 reported that throughout the state that an estimated 1,853 Murray Cod were caught by South Australian residents with 507 harvested. The report (Jones, 2009) indicated that the estimates of total harvested numbers for Murray Cod lacked precision (95% Confidence Level (CL) are > 80%), principally due to the low sample size of fishers in the diary survey. Given this lack of precision, these data may not accurately reflect the shares of the resource that each fishing sector had access to at that time and therefore an allocation for Murray Cod has not been made. In addition to this in 2007/08, commercial licence Page 40 of 77 holders in the Lakes and Coorong Fishery were permitted to target Murray Cod; however, given the low flows and stock concerns they voluntarily stopped targeting/harvesting Murray Cod. 9.2.1.3 Tuna Tuna is managed by the Australian Government under the Offshore Constitutional Settlement in all waters. The commercial take of tuna species is managed by the Australian Fisheries Management Authority under the Commonwealth legislation the Fisheries Management Act 1991. There are no South Australian managed commercial fishery licences that can take tuna under the SA legislation Fisheries Management Act 2007. As such these tuna commercial fisheries are outside the jurisdiction of the South Australian Government and therefore an allocation has not been provided for tuna. 9.3 Allocation triggers An important component of the allocation of shares is monitoring to identify a change in the relative value of those shares over time. The value of shares can be measured in a variety of ways including catch and effort, economic value and social values. It is difficult to measure the economic values associated with a recreational fishing species (or many of the commercial fisheries) as they are only one species of a multi-species fishery. Measuring the social values of a fishery is an evolving area of natural resource management, and there are no clearly identifiable indicators of social value that can be readily incorporated into an assessment of share value at this point in time. For these reasons, catch will be used as the indicator to measure changes in the value of shares. Good estimates of recreational catches will be available every five years. In order to detect a change in share value, thresholds have been determined for each sector’s percentage allocation. Exceeding this allocation will trigger a review of the allocation described in Section 9.5. Therefore comprehensive reviews of all sector allocations will only be undertaken in years for which recreational catch information is available. In order to detect a change in catch shares, thresholds have been determined. Exceeding this catch share (% of catch by the sector from the overall catch) will trigger a review of the allocations; the triggers are described in Table 5 and Appendix 8. All sectors’ catch against their allocated share and triggers will be reviewed every five (5) years, to coincide with state-wide recreational fishing surveys when information is available for all sectors. Commercial triggers have been described within the relevant commercial management plans. Trigger limits for the key species have been designed to reflect the high importance of these species to recreational fishing and the different components of the commercial fisheries and allow limited ability for sectors to exceed allocations without triggering a review (see Table 5 for the trigger limits and Table 7 for the trigger calculations). Trigger limits for the other allocated species (see Table 5 and Table 8 for the trigger calculations) have been designed to detect a real shift in access and provide to some extent more fluctuation in catches before triggering a review. Trigger limits have also been set at a level that is commensurate with the initial allocation and allows for variability in catches. Where a sector has been allocated over 91%, no trigger limits have been set as any shares greater than this amount are considered to be within normal fluctuation ranges. Please see Appendix 8 for more details on the trigger limit calculations. An allocation trigger is not provided for Pipi in Table 5 below. The Pipi allocation is based on areas of access for fishing rather than catch (see Appendix 4 for more Page 41 of 77 details). As such any shift in the allocation would be a deliberate allocation decision, and require consideration of the allocation at that time. Table 5: Allocation triggers (percentages- portion of harvest). Key species highlighted green. Species Recreational Allocation 0.15% Abalone Trigger 1% Allocation 42.50% Trigger 46.75% Australian Herring Allocation 0% Australian Sardine Trigger Allocation 0.75% 0% Australian Anchovy Trigger Allocation 0.75% 0% Balmain Bug (Spencer Gulf) Trigger 0.75% Allocation 48.4% Trigger 60.5% Black Bream Allocation 29% Trigger 44% Blue Swimmer Crab Allocation 25.3% Bronze & Dusky Whaler Shark Trigger Allocation 50.60% 0.09% Golden Perch (Lake Eyre) Flood Trigger Golden Perch (Lake Eyre) NonFlood Allocation Trigger 1% 90% At the review of the plan Allocation 27.40% Trigger 41.10% Allocation 10.30% Trigger 20.60% Allocation 48.50% Trigger 53.35% Golden Perch (SAMDB) Greenback Flounder King George Whiting Allocation 0% King Prawns Spencer Gulf Trigger Page 42 of 77 0.75% Allocation 44.8% Marine Trigger 56.00% Mullet spp. Allocation 0.55% L&C (inland) Trigger 1% Allocation 79.1% Marine Trigger 98.88% Mulloway Allocation 27.6% Trigger 41.4% L&C (inland) Allocation 14.00% Trigger 28.00% Allocation 18.00% Trigger 27.00% Allocation 49.50% Trigger 61.88% Allocation 37.40% Trigger 56.10% Allocation 19.50% Trigger 29.25% Sand Crab Snapper Snook Southern Calamari Southern Garfish Allocation 3.50% Trigger 7.00% Southern Rock Lobster Allocation 51.65% Trigger 64.56% Trevally Allocation 0.15% Vongole (Mud Cockle) spp. Trigger 1% Allocation 21.00% Trigger 42.00% Allocation 98.87% Yellowfin Whiting Yellowtail Kingfish Trigger No trigger - greater than 100% Page 43 of 77 9.4 Review of allocations Allocations between sectors will be reviewed in accordance with the Allocation Policy and under the following scenarios: • A review of the management plan, which will reassess the appropriateness of shares and may trigger an adjustment; or • One or more sectors exceed their allocation in accordance with the allocation triggers described in Section 9.3 or in accordance with the commercial allocation triggers described in the commercial management plans; or • A major change in the management of a species and or a sector that results in a shift of allocations to a sector/s, including the making of an Aboriginal traditional fishing management plan. 9.5 Allocation review process The process to review allocations under the scenarios described above will be a twostaged approach. The first stage is an initial assessment to determine whether a full assessment is necessary or appropriate. 9.5.1 Initial assessment The initial assessment will be conducted by PIRSA in consultation with relevant sectors of the fishery. Once the need for a review has been recognised an assessment committee will be established. The committee will be required to assess the need for a second-stage assessment based on the following: • Has there been a shift in the access value of the fishery. Is there an emergence of a new commercial or recreational species that would bring additional social and economic benefits to the State if a reallocation was to occur? • If a trigger limit has been breached, can the breach be readily explained and justified? • Is the potential change in shares significant and considered long-term? A minor shift/anomaly may not require a full review. A written report is to be prepared by the committee, with a recommendation to proceed to a full assessment or not. PIRSA will determine whether to move to a full assessment or may refer a recommendation to the Minister. 9.5.2 Full assessment As with the initial assessment, a full assessment of allocation will be conducted by PIRSA in consultation with relevant stakeholders. An evaluation panel is to be established with membership including an independent chair (external appointment), independent experts as required (e.g. economist, social scientist), representatives of each fishing sector and a fisheries manager from outside South Australia (preferably with allocation experience). The panel needs to evaluate how the value of one or more sectors is changing and the likely trends in the future. In the context of these changes, all options being considered should be evaluated against the option of maintaining the status quo and the potential follow on effects with regard to: • Contribution to Gross State Product • Contribution to employment • Access for consumers to fresh seafood Page 44 of 77 • • • • • Maintenance and growth of regional communities Health impacts Sport and recreation opportunities Consistency with tourism policies Other criteria relevant to the fishery 9.5.3 Assessment outcomes Following the full assessment, the Allocation Policy (PIRSA 2011b) provides that the review panel may recommend to the Minister one of two actions, either: • Manage each sector within the existing allocated shares • Proceed to adjust shares 9.5.3.1 Process for managing within existing shares If shares are to be maintained between sectors it may be necessary, depending on the circumstances, to alter the catch of one or more sectors. To determine the appropriate mechanism to re-establish initial allocations, the existing co-management arrangements will be used to develop a preferred option. Adjusting recreational shares, if required, are likely to be made through alterations to existing bag and boat limits, seasonal closures and size limits. Managing adjustments to the commercial sector, if necessary, are likely to be achieved through a variety of controls consistent with current management arrangements and the harvest strategy for the commercial fishery such as; seasonal and area closures, gear restrictions, catch limits and size limits. 9.5.3.2 Process for adjusting allocations The following points are provided to guide an allocation adjustment process: • Adjustments to the shares will, in the first instance, be implemented through a voluntary process and through direct negotiations between the relevant sectors. • If agreement cannot be reached, a process of compulsory acquisition may occur in accordance with the Allocation Policy. Adjustments are to be finalised within two years of the allocation adjustment process commencing. • Where the commercial fishing sector’s shares are reduced, so as to increase the share of another sector, compensation is to be paid to the holders of commercial licences or licensed entitlements (sections 43(2) and 58 of the Fisheries Management Act 2007). • The Act does not provide compensation requirements for changes to the recreational sectors shares. However, management plans for each commercial fishery includes objectives to manage the commercial take with the allocated shares as part of the harvest strategies set out in those plans. Page 45 of 77 10 RECREATIONAL FISHING RESEARCH AND STOCK ASSESSMENT 10.1 Data collection, reporting and analysis To achieve the research and monitoring needs for the fishery, a variety of data types are collected and analysed: • Fishery independent data o Biomass surveys (e.g. Mud Cockles/Pipi) o Puerulus sampling (Rock Lobster) o Fishing surveys (Blue Swimmer Crabs, Mulloway, Golden Perch, Yellow Eye Mullet) o Abalone timed swim and lead line surveys • Fishery dependent data o Recreational fishing surveys (see below) o Recreational fisher data collection (citizen science) o Commercial catch and effort data (all species) o Commercial market sampling for collection of age/length information (Snapper, Whiting, Garfish, Mulloway, Golden Perch, Yelloweye Mullet) o Voluntary commercial Rock Lobster pot sampling program Catch and effort data for recreational fisheries are typically difficult to collect (due, for example, to a high diversity in participants, species targeted, areas fished), are not collected on a regular basis and tend to be less precise than data from commercial fisheries (Sloan et al, 2014). However, there is a significant commercial component of catch for most recreationally taken species where the monitoring and assessment of commercial data provides an understanding of stock dynamics to determine stock status. The monitoring and data collection programs for the commercial fisheries are set out in the relevant commercial fishery management plans: e.g. Snapper Management plan for the South Australian Commercial Marine Scalefish Fishery. Most of the above listed data are collected as part of the monitoring and data collection programs for the commercial fisheries. 10.2 Recreational fishing surveys Recreational fishers collectively harvest significant proportions of the total catch for a number of key species caught in South Australia. The need for statistically robust estimates of their catches is crucial in managing allocated shares of the resource between sectors, as well as assessing the biological sustainability for each fishery and managing the state’s aquatic resources under the Fisheries Management Act 2007. Regular estimates of the recreational take are needed, and therefore, there is a need to develop cost-effective methods to collect such information in a timely manner. The methods developed for surveying recreational fishers differ significantly from those used for commercial fishers who report on their fishing activities by way of compulsory logbooks. This latter method would clearly be cost-prohibitive, given the number of participants, to undertake. The primary source of data used for managing recreational fishing is the state-wide recreational fishing surveys, currently undertaken every five (5) years. Page 46 of 77 The primary objectives of these surveys are: • to determine the participation rate in recreational fishing throughout SA by SA residents and to profile the demographic characteristics of these recreational fishers; • to quantify the catch and effort of the South Australian recreational fishing sector; and • to assess attitudes and awareness of recreational fishers in terms of various fisheries-related issues. The recreational catch estimated from the surveys is included into fishery models and assessments of the stock status. 10.3 Status reporting of species The status of the key recreational species is reported in the national Status of Key Australian Fish Stocks and from time to time the Status of Key South Australian Fish Stocks report. Furthermore, the stock status for many species is reported in the stock assessments reports for the individual species and is available on PIRSA’s website. These reports are considered when reviewing management arrangements for recreational fishing. The national Status of Key Australian Fish Stocks report brings together available biological, catch and effort information to determine the status of key wild catch fish stocks against a nationally agreed reporting framework and provides a resource to inform the general public, policy makers and industry on the sustainability of stocks. The agreed reporting framework is also used in reporting the status in the Status of Key South Australian Fish Stocks report and stock assessments reports. 10.4 Research services Research needs are identified by PIRSA in consultation with RecFish SA (and other stakeholders) through co-management processes. The South Australian Research Development Institute (SARDI) Aquatic Sciences is currently the primary research provider for stock assessments and status reports which are used for assessing the status of the species taken recreationally and commercially. Other recreational research projects are also identified from time to time to improve knowledge for improving/reviewing management of species (e.g. Snapper movement project, Catfish and Murray Cod co-management projects). Other research providers, such as Victoria DPI (2013/14 recreational fishing survey) and University of Canberra (social indicators projects) etc. are also utilised as appropriate for their expertise in undertaking research projects. Costs of the research program for recreational fishing are currently appropriated through core State funding. State funding is not the only stream of funding from which research relevant to the management of the fishery is undertaken. Funds from recreational fishing registration fees (recreational mesh nets and Rock Lobster pots) also contribute to funds for research programs. External sources such as the Fisheries Research and Development Corporation (FRDC), Natural Resource Management (NRM) Boards and universities also provide opportunities. In addition, research and monitoring projects which have commercial importance are funded through cost recovery from commercial fishing licence fees (e.g. Blue Swimmer Crab stock Page 47 of 77 assessment, Snapper movement project, etc). In some instances these projects have some State funding attributed to the project where they are also important to the recreational sector; this level of funding is commensurate with the allocated shares for the species. 11 COMPLIANCE AND MONITORING 11.1 Objectives PIRSA Fisheries and Aquaculture runs a compliance program that has dual objectives: • To maximise voluntary compliance with fisheries rules3 • To create effective deterrence to breaching fisheries rules These objectives are consistent with the Australian National Fisheries Compliance Policy4. Voluntary compliance is maximised through ensuring that recreational fishers are aware of the rules that apply to their fishing activities, understand the rules and the purpose of those rules, and operate in a culture of compliance. Effective deterrence is created through the presence of Fisheries Officers and awareness of compliance operations, as well as through detection and prosecution of illegal activity.5 In addition to fisheries officers, PIRSA Fisheries and Aquaculture also employ two Volunteer Coordinators and 90 volunteers to deliver the Fishcare Volunteer program for recreational fishing across the State. Fishcare Volunteers commit in excess of 6,000 hours to provide information to over 24,000 fishers annually. Fishcare Volunteers regularly patrol our beaches handing out information and often attend field days and other events with displays. 11.2 Recreational fishing initiatives assisting with voluntary compliance There is a National Code of Practice for Recreational and Sport Fishing, which was developed by Recfish Australia. A copy of the code can be found here <http://recfishaustralia.org.au/national-code-of-practice-2010/>. Recognition of the need for more sustainable fishing practices and an agreed national standard for recreational fishing led to the development of the first national code of practice (COP) in 1995. The National Code of Practice for Recreational and Sport Fishing addresses four main areas of fishing responsibility: • Treating fish humanely • Looking after our fisheries 3 Rules include regulations, licence conditions, closure notices or any other enforceable instrument under the Fisheries Management Act 2007. 4 The Australian National Compliance Strategy 2010-2015 was developed by the National Compliance committee, it outlines the objectives that Australian fisheries agencies will pursue to achieve an optimum level of compliance and create effective deterrence to illegal fishing activity. 5 Prosecution may include the issuing of a formal caution or an expiation notice, in addition to prosecution through the courts. Page 48 of 77 • • Protecting the environment Respecting the rights of others Under the above overriding objectives sits fourteen more specific principles. The ones relevant to compliance are: • Using only appropriate, legal tackle, attending all fishing gear and valuing our catch • Understanding and observing all fishing regulations and reporting illegal fishing activities RecFish SA also undertake education/information initiatives from time to time which assist in educating fishers of the regulations. 11.3 Compliance costs The costs of the recreational compliance program are funded by the South Australian Government from consolidated revenue. 11.4 Planning PIRSA compliance programs are reviewed on an annual basis to direct effort and ensure compliance activities are intelligence-driven, efficient, cost effective and outcome focused. The compliance plan is underpinned by three core strategies: Education and Awareness, Effective Deterrence and Appropriate Enforcement, and is focused towards increasing voluntary compliance and maximising effective deterrence. An analysis of intelligence and information holdings is conducted to identify the major risks for the fishery. A series of strategies, actions, and initiatives are detailed and used to focus the primary compliance effort in order to manage the risks and achieve targeted outcomes. Compliance plans are reviewed each year and are implemented for the full financial year 11.5 Compliance risk assessment A compliance risk assessment is undertaken on an annual basis for each fishery. This assessment identifies and prioritises the compliance risks that exist in the fishery. Risks are ranked according to the likelihood and consequence of the risk occurring. The compliance risk assessment is used to inform annual compliance planning processes, and is reviewed each year; it is an internal confidential document. However PIRSA will through the co-management arrangements gather RecFish SA’s views on the priority risks in planning this document. 11.6 Responses and benchmarks Compliance activities are planned to respond to the risks identified in each fishery, with an emphasis on the most serious risks. Responses must include measures aimed at both maximising voluntary compliance and creating effective deterrence. The principal outcome of this compliance program is to support sustainable management of the recreational fishery by: • Increased voluntary compliance Page 49 of 77 • • • • • • • • Continued development of effective deterrence strategies Accurate intelligence and risk predictions Successful enforcement outcomes for repeat or serious offences Development of efficient and cost effective compliance strategies Continued development of stakeholder engagement programs Reduced incidence of reported illegal activity Reduced incidence of documentation errors and inconsistencies Increased positive interactions and collaboration with stakeholder 12 REGULATORY ARRANGEMENTS Regulatory arrangements for recreational fishing are contained within the Fisheries Management Act 2007 and Fisheries Management (General) Regulations 2007. The recreational fishing rules are available on the PIRSA Fisheries and Aquaculture website http://www.pir.sa.gov.au/fishing and are accessible on PIRSA’s free SA Recreational Fishing Guide app. Future amendments to the regulations could change the regulatory arrangements listed in this section. Appropriate consultation will be undertaken should that occur. Recreational fishing regulations are in place for sustainability reasons (e.g. controlling the recreational harvest), to ensure fish stocks are shared equitably between all recreational fishers and between all extractive users (recreational, commercial and Aboriginal traditional sectors), as well as for social/economic reasons. There is a need to establish standards of recreational fishing which are acceptable to the community, whilst ensuring that recreational fishers are provided with opportunities to take a reasonable catch and to have quality recreational fishing experiences. Other factors to take into account include the principle that recreational fishing is considered a sport/leisure activity and is not managed to provide a return on investment in boats or fishing gear. Additionally, the current harvest shares between recreational and commercial fishers should be maintained unless there are explicit reasons for changing shares. The three tiers of regulations that are available in the Act to manage the specific issues that exist in the recreational fishery are outlined below. The issues that need to be managed, as outlined previously, include: • Allowing recreational fishers to sustainably take a reasonable feed of fish for immediate needs: The primary management tool is bag and boat limits. • Addressing the taking and ‘stockpiling’ of recreational catches: The primary management tool is possession limits. • Addressing illegal activities such as poaching and illegal sales of high value species: The primary management tool is commercial quantity limits and the trafficking provisions. Page 50 of 77 12.1 Management arrangements Recreational fishing in South Australia is managed through a mixture of input and output based management controls. It is illegal for recreational fishers to sell or trade any of their catch. 12.1.1 Recreational Bag, Boat and Size Limit The daily bag limit is the maximum number of fish of a species that a person can take in any 24 hour period commencing at midnight. The daily boat limit is generally set at three times the daily bag limit (for most species) where three or more persons are fishing on board the boat. These limits have been set to take into account both sustainability, equity and social requirements, often to allow recreational fishers to catch a reasonable feed of fish that they can consume in any 24 hour period or to meet immediate family needs. Minimum size limits often let fish reach maturity, which allows fish to reproduce at least once before entering the fishery and being harvested by any fishing sector. Minimum size limits apply to most recreational species. Maximum legal size limits protect the larger breeding fish from harvest and by doing so create a higher broodstock (breeding fish) population. Maximum size limits in conjunction with minimum size limits are commonly referred to as slot limits. The width of the slot limit (between the minimum and maximum size limits) can be used to lower total harvest i.e. the narrower slot width, the less fish are available to be removed from the population. There are two species (Western Blue Groper and Murray Cod) that have a legal maximum size limit, although the take of Murray Cod is currently catch and release only in South Australia. In developing this plan, a Recreational Bag, Boat and Size Limit Review was undertaken. The review aims to update the existing limits by taking into account the status of fishery stocks, harvest shares and recent biological research, and the principle that recreational fishing is considered a sport/pleasure activity and is not managed to provide a return on investment in boats or fishing gear. 12.1.2 Recreational Possession Limit A possession limit is the maximum number of fish that a person is allowed to have in their possession or control in certain circumstances. Possession limits can provide a useful tool to constrain recreational fishers from taking and stockpiling large quantities of fish. Possession limits can also assist in controlling high levels of localised recreational fishing effort, thereby promoting stock sustainability and reducing the risk of localised depletion. Possession limits also aim to ensure that recreational catches and fishing opportunities are shared between all recreational fishers, rather than a small percentage taking most of the catch. 12.1.3 Commercial Quantity The Act and regulations provide for species specific quantities of fish a non-licensed fisher can have in their possession, without the onus of having to satisfy that they obtained the fish legally and/or are not for commercial gain. The rules for commercial quantity involve evidentiary provisions that reverse the onus of proof. In the case where a fisher is proved to have commercial quantities in his or her possession or control, then it is assumed in the absence of proof that they were for the purpose of sale. These provisions are in place to provide a mechanism to investigate, and if necessary prosecute those who may engage in the illegal trafficking of fish not taken pursuant to a commercial fishery or fish processor licence. Page 51 of 77 12.1.4 Fishing gear/devices There are restrictions on permitted devices (see Appendix 9 for a list of permitted devices) and the number of devices that recreational fishers can use for fishing. The regulation of fishing gear assists in managing effort, ecosystem impacts and sharing fishing areas with others (e.g. fishing from jetties). Some recreational fishing devices must be registered before use: • Rock Lobster pots • mesh nets in Lakes Albert and Alexandrina • mesh nets in Lake George • mesh nets in the Coorong There are also requirements for marking certain gear; all permitted devices that are left unattended must be marked with a tag/buoy and registered devices must be marked with a tag. Marking of devices assists in identifying ownership of the gear, enforcement of the number of permitted devices and drawing attention to any gear that may be a navigation hazard to others. Where an offence is being committed, the gear and/or items that afford evidence to the offence may be seized by Fisheries Officer and subject to forfeiture. Such offences may include use of illegal gear, unmarked gear, and/or using more than the permitted number of devices etc. 12.1.5 Protected species Some aquatic species are protected under the Fisheries Management Act 2007 and Environment, Protection, Biodiversity and Conservation Act 1999 (EPBC Act) and must not be taken: • at any time (e.g. sea horses) • during certain stages of their life cycle, for example during their reproductive period (e.g. female Rock Lobster and Blue Swimmer Crabs with eggs) • during certain times of the year (e.g. Snapper state-wide closure – 1 November to 15 December) • from particular closed areas or reserves (e.g. Silver Perch in the River Murray). Protected species that are accidentally caught must be returned to the water immediately. Interactions with EPBC Act protected species which result in the unintentional death, injury, trading, taking, keeping or moving in Commonwealth waters (generally waters greater than 3 nm off the coastline and gulfs/bays) must be reported to Department of the Environment by phone: (02) 6274 1111 or <[email protected]>. See http://www.environment.gov.au/marine/marine-species for further information. 12.1.6 Fishing closures Fishing closures apply to recreational and commercial fishers for the management of fish species. These closures include aquatic reserves, intertidal rocky reefs and some species carrying eggs. Fishing closures can help manage fish stocks by: • protecting spawning areas • letting juvenile fish grow in safety • reduce fishing pressure on stocks • minimising disturbance to fish stocks from fishing activity Page 52 of 77 Fishing can be banned in some areas all year and for some others temporally (e.g. seasonal closures). Seasonal closures are declared to protect fished species during their breeding season. Any species caught during in a closure or closure period must be returned to the water immediately. 12.1.7 PIRSA’s Policy for the release of aquatic resource Section 78 (2) of the Fisheries Management Act 2007 specifies that it is an offence to release an exotic fish, any aquaculture fish or any fish that has been kept from its natural habitat into (unconfined) natural waters. The Minister may issue a permit authorising a person to release aquatic resources into specified waters. A policy has been developed to guide applicants who wish to translocate and enhance aquatic resources into South Australian waters under a permit. The policy establishes a risk-based assessment process to evaluate and regulate such translocations. Details of the policy and applications forms are available on the PIRSA website. Three types of stocking (and then release) of aquatic resources are considered in PIRSA’s policy for the release of aquatic resources. These are ‘conservation stocking’, ‘stock enhancement’ and ‘harvest stocking’. 1. Conservation stocking is where a fish stock is not performing against biological or environmental fisheries management objectives and requires a recovery program (e.g. protected, endangered or threatened species). 2. Stock enhancement is where a fish stock or fishery is not performing against defined fisheries management objectives, whether they are biological, social, economic or environmental, or where a fish stock or fishery is performing satisfactorily, but production could be further improved (provided the environment can cope with the increase in fish stock without detriment to the ecosystem). 3. Harvest stocking is where a fish stock or fishery is to be established in waters where the fish stock or fishery did not previously exist (e.g. a freshwater impoundment or dam). An increase in fish stocks, as a result of releasing aquatic resources, can provide many benefits environmentally, socially and economically to the community and to the various fishing sectors. This can include creating ‘put and take’ fisheries and augmenting existing fish stocks providing improved fishing opportunities, conservation outcomes, employment and subsequent economic benefits. Effective management of stocking activities is required because a number of risks, which are not always well understood, are possible (Gillanders et al, 2006). 12.1.8 Consequences of breaching the rules There are a range of penalties for fisheries offences, they include monetary penalties and/or for serious offences imprisonment. Our fish stocks are a precious and finite resource and PIRSA's ongoing efforts to investigate and prosecute illegal fishing activities helps secure the sustainability of our fish stocks for both recreational and commercial fishers. Members of the public are urged to report suspicious or illegal fishing activity to the 24 hour Fishwatch number 1800 065 522 or via the SA Recreational Fishing Guide smartphone app available for free download from <www.pir.sa.gov.au/recfishingapp>. Page 53 of 77 13 RESOURCES REQUIRED TO IMPLEMENT THE PLAN 13.1 Costs of managing recreational fishing The Government contributes to PIRSA Fisheries and Aquaculture’s total budget to undertake the public good component of many of the services provided by PIRSA Fisheries and Aquaculture. These include compliance, which incorporates monitoring, prosecutions, education and awareness for recreational fishers, and other services required to manage the recreational components of the fishing sector (policy, systems and information). The costs of these services for each commercial fishery are funded by the commercial sector through cost recovery and other programs may be funded through various service level agreements between PIRSA and external agencies. Funding for research in fisheries including Blue Crab and Marine Scalefish contain a contribution made by Government on behalf of the recreational sector. This contribution is made because there are a high proportion of these aquatic resources taken by the recreational fishing sector and in recognition that they are recreationally very important species. In addition to funds appropriated from treasury, some funding is sourced from recreational Rock Lobster pot licences and recreational net licences. The key costs for implementing this plan and managing recreational fishing include activities in the following areas: • Research - stock assessments and monitoring, status reporting, other research projects from time to time and undertaking the recreational fishing survey (which will include a social and economic component to track objectives in this plan) • Licensing - administration and management of recreational fishing device registrations (Rock Lobster pots and recreational mesh nets) • Fisheries policy and management - day-to-day fisheries management services, advice and facilitation of fisheries policy and management issues, working and building relationships with fishery stakeholders, education and extension activities • Compliance - PIRSA Fisheries and Aquaculture teams undertake coordinated compliance activities to educate fishers, deter fishery offences and enforce the rules and regulations PIRSA Fisheries and Aquaculture and RecFish SA will continue to explore resourcing opportunities for the sector, including management, compliance, research, fishing and fish habitat enhancement, education and extension. Page 54 of 77 14 APPENDICES 14.1 Appendix 1: Estimated recreational 2013/14 catch Table 6: Estimated annual catch (total, harvested and released numbers) and release rates (%) of marine finfish species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015). Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Australian Salmon 220,332 41,133 148,361 30,520 71,969 23,611 32.7 King George Whiting 2,001,937 373,861 1,467,601 253,416 534,335 153,718 26.7 Mulloway 47,238 13,363 9,883 4,537 37,354 11,793 79.1 Snapper 437,329 166,107 207,809 79,894 229,520 89,122 52.5 Southern Garfish 980,566 256,737 870,147 239,053 110,419 29,969 11.3 Australian Herring 1,167,774 257,359 1,014,374 226,701 153,404 49,951 13.1 Barracouta 1,679 1,092 858 852 821 687 48.9 Bight Redfish 41,285 23,642 31,124 17,519 10,161 6,326 24.6 Blue Devil 2,804 2,792 0 0 2,804 2,792 100 Bream, Black 197,848 94,210 16,979 6,985 180,869 92,257 91.4 Cod, Marine 1,667 1,578 814 789 853 790 51.1 Cod, Red Rock 33,671 14,319 4,171 2,008 29,500 13,207 87.6 Drummer 1,795 1,626 1,795 1,626 0 0 0 Eel, Conger 551 556 0 0 552 556 100 Flathead 55,066 17,730 17,794 4,645 37,272 16,542 67.7 Flounder 1,409 1,132 1,318 1,136 91 100 6.5 Gemfish 12,291 12,078 12,291 12,078 0 0 0.0 Groper, Western Blue 344 328 0 0 344 328 100 Gurnard 8,089 4,376 3,510 3,052 4,579 3,140 56.6 King fish, Yellowtail 9,557 7,974 7,764 7,094 1,793 1,088 18.8 Leatherjacket 121,962 39,397 75,787 30,382 46,175 14,634 37.9 Page 55 of 77 Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Ling 467 465 0 0 467 465 100 Luderick (Zebra fish) 1,784 919 799 498 985 618 55.2 Mackerel, Blue Slimy 103,764 62,320 103,764 62,320 0 0 0 Mackerel, Scad 442 435 442 435 0 0 0 Morwong, Blue 2,705 2,260 2,705 2,260 0 0 0 Morwong, Dusky 4,928 3,418 4,928 3,418 0 0 0 Mullet, Red 44,321 12,749 20,730 7,459 23,591 9,725 53.2 Mullet, Unknown 15,041 8,567 14,818 8,564 223 219 1.5 Mullet, Yellow eye 100,876 27,860 71,278 22,370 29,598 10,427 29.3 Old Wife 856 604 268 267 587 471 68.6 Perch, Other 104 104 104 104 0 0 0.0 Striped Trumpeter 278,646 192,551 220,898 191,497 57,748 19,961 20.7 Rays/Skates 9,489 4,361 0 0 9,489 4,361 100. Samsonfish 1,629 1,624 1,629 1,624 0 0 0.0 Shark, Gummy 11,597 4,549 8,822 3,690 2,775 1,624 23.9 Shark, Port Jackson 4,313 2,129 38 39 4,275 2,128 99.1 Shark, School 7,749 5,596 7,208 5,496 541 469 7.0 Shark, Spurdog/Dogfish 2,772 1,703 0 0 2,772 1,703 100 Shark, Unknown 584 461 0 0 584 461 100 Shark, Whaler 723 530 0 0 723 530 100 Shark, Wobbegong 467 465 0 0 467 465 100 Snook 187,165 85,511 174,224 83,340 12,941 5,498 6.9 Sweep 68,394 29,620 29,555 10,705 38,839 21,814 56.8 Toad fish/Puffers/ Blowfish 157,543 80,746 8,159 5,717 149,384 80,233 94.8 Page 56 of 77 Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Trevally, Blue Eye 6,269 3,608 5,844 3,484 425 304 6.8 Trevally, Silver 73,924 31,081 57,140 26,265 16,784 6,851 22.7 Trumpeter 69,523 21,259 33,900 15,470 35,624 14,345 51.2 Tuna, Southern Bluefin 16,261 7,719 10,427 4,833 5,834 4,147 35.9 Tuna, Yellowfin 2,860 2,285 2,609 2,250 251 231 8.8 Whiting, School 35,725 30,360 31,691 30,202 4,034 2,633 11.3 Whiting, Unknown 13,457 5,875 3,897 1,573 9,563 5,549 71.1 Whiting, Weedy 24,067 12,155 8,587 7,572 15,480 7,925 64.3 Whiting, Yellowfin 286,133 137,509 174,264 73,317 111,869 82,594 39.1 Wrasse, Blue Throated 22,073 13,736 6,908 6,819 15,165 11,497 68.7 Wrasse, Unspecified 29,443 14,824 5,863 4,848 23,580 13,116 80.1 Other (Unspecified) 12,112 4,027 5,704 2,347 6,408 3,279 52.9 Total marine finfish 6,943,404 n.a. 4,909,587 n.a 2,033,821 n.a 29.3 Table 7: Estimated annual catch (total, harvested and released numbers) and release rates (%) of marine shellfish, crustacean and cephalopod species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015). Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Blue Swimmer Crab 2,457,336 742,086 1,423,794 415,730 1,033,533 342,421 42.1 Southern Rock Lobster 102,931 58,763 62,346 39,085 40,585 25,202 39.4 Southern Calamari 480,016 111,883 473,803 111,231 6,214 3,271 1.3 Pipi 1,076,368 808,357 378,158 237,172 698,233 656,657 64.9 Abalone, Blacklip 282 280 282 280 0 0 0 Abalone, 4,651 1,893 4,395 1,876 256 251 5.5 Page 57 of 77 Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Abalone, Unknown 472 434 472 434 0 0 0 Cockles, Mud 12,805 12,574 12,805 12,574 0 0 0 Cockles, Unknown 71,872 57,843 41,165 29,283 30,707 30,202 42.7 Crab, Sand 52,557 31,633 27,277 21,655 25,280 20,201 48.1 Crab, Giant 205 193 205 193 0 0 0 Crab, Unknown 70,614 42,539 1,054 746 69,560 42,523 98.5 Cuttlefish 2,648 1,431 1,431 973 1,217 1,046 45.9 Octopus 1,173 639 465 327 708 417 60.4 Razorfish 72,676 34,963 72,676 34,963 0 0 0. Scallops 249,669 153,880 233,100 140,061 16,569 14,718 6.6 Squid, Arrow 256,266 57,065 251,206 56,578 5,060 2,703 2.0 Squid, Unspecified 3,016 2,285 2,882 2,162 134 133 4.5 Tubeworms, Beach 27,591 27,816 19,314 19,471 8,277 8,345 30.0 Yabbies/Nippers 1,818 1,677 0 0 1,818 1,677 100 Total marine shellfish 4,944,969 n.a. 3,006,832 n.a. 1,938,151 n.a. 39.2 Greenlip Table 8: Estimated annual catch (total, harvested and released numbers) and release rates (%) of freshwater species, by SA residents aged 5 years or older in 2013/14 (Giri et al, 2015). Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Carp 223,750 50,848 205,882 48,495 17,854 7,626 8.0 Catfish, freshwater 20,538 7,131 794 562 19,744 6,714 96.1 Crayfish, freshwater 44,045 39,989 17,588 16,285 26,457 23,708 60.1 Page 58 of 77 Common name Number caught SE (±) Number harvested SE (±) Number released SE (±) Release rate (%) Grunter 212 221 0 0 212 221 100 Golden Perch (Callop) 116,153 31,256 37,367 10,019 78,786 22,382 67.8 Perch, Redfin 7,464 5,150 5,866 4,884 1,598 1,632 21.4 Perch, Silver 11,038 4,522 610 606 10,428 4,229 94.5 Shrimp, freshwater 141,994 77,462 47,409 28,363 94,586 71,934 66.6 Trout, Brown 482 452 482 452 0 0 0 Trout, Rainbow 302 297 302 297 0 0 0 Trout, Unknown 1,386 1,071 1,386 1,071 0 0 0 Yabbies, freshwater 271,237 179,738 58,977 26,028 212,261 176,439 78.3 Total freshwater species 838,602 n.a. 376,663 n.a. 461,924 n.a. 58.7 Page 59 of 77 14.2 Appendix 2: Information used to allocate shares In determining the share to be allocated to a particular fishing sector under the first management plan for an existing fishery, the share to which that sector had access at the time the Minister requested to prepare the plan (based on the most recent information available to the Minister) must be taken into account. The Allocation Policy requires that information about current use by sectors must be real, recent and reliable. The information used to allocate shares of aquatic resources in this management plan is derived from the following sources: • 2007/08 South Australian Recreational Fishing Survey (Jones, 2009) • The South Australian Recreational Charter Boat Fishery Report 2009 (Knight, 2010) • South Australian Wild Fisheries Information and Statistics Report (Knight and Tsolos, 2009) • South Australian Wild Fisheries Information and Statistics Report 2008/09 (Knight and Tsolos, 2010) • SARDI Aquatic Sciences catch and effort database of licensed commercial fishers’ logbook returns • Commercial fishery management plans that have considered the above information and allocated access shares. 14.3 Appendix 3: Sectors related to fishing allocations 14.3.1 Recreational sector The recreational sector accounts for a significant proportion of the total catch of a number of species, such as King George Whiting, Blue Swimmer Crabs, Mulloway and Southern Calamari. For the purpose of this management plan, Charter Boat Fishery catch is considered to be recreational catch and is allocated as part of the broader recreational fishing sector, with the exception of Snapper and King George Whiting where a specific allocation has been made to the charter sector, as these species were identified by this sector as a key species for their fishery. 14.3.2 Commercial sector Licence holders in the Marine Scalefish Fishery (MSF), Southern Zone Rock Lobster Fishery (SZRL), Northern Zone Rock Lobster Fishery (NZRL), Miscellaneous Fishery (MISC), Lakes and Coorong Fishery (LCF), Blue Crab Fishery (BCF) and Central Zone (CZAF), Western Zone (WZAF) and Southern Zone (SZAF) Abalone Fisheries all have some form of access to recreationally caught species. All commercial sectors with access have been considered in the initial allocation process. Some recreationally taken species are also taken by Commonwealth managed fisheries such as the Southern and Eastern Scalefish and Shark Fishery and the Southern Bluefin Tuna Fishery. These species are managed by the Australian Fisheries Management Authority (AFMA), and the management of these commercial fisheries are outside the jurisdiction of the South Australian Government. As such, an allocation is not provided for these fisheries. 14.3.3 Aboriginal traditional sector The Act acknowledges Aboriginal or Indigenous fishing in the form or Aboriginal traditional fishing. This is defined in part as being “non-commercial” in nature. It should be noted that, under the Act, the Minister may create separate management plans for Aboriginal traditional fishing where an ILUA exists with any Native Title group. Page 60 of 77 In respect of any future traditional fishing management arrangements, for the taking recreational species they will be subject to any ILUA’s and traditional fishing management plans and any claims of Native Title as they relate to the taking of aquatic resources in SA waters. These will be assessed on their merits and on a case by case basis taking into consideration the circumstances raised at that time. Any necessary variation of this management plan resulting from this can be ascertained at that time. For the purposes of this management plan the nature and extent of Aboriginal traditional fishing for recreational species (state-wide marine and freshwater) region could not be ascertained at the time of preparing this management plan but it is likely some species were taken traditionally. In this management plan, a share of access has been allocated and set aside for the purpose of resolving any Native Title claims. Should the nature and extent of Aboriginal traditional fishing of species within this plan become evident the provisions of this plan can be reviewed. It should be noted that at the time of preparing this management plan, one claim for access or allocation for Aboriginal traditional fishing has been determined under a Native Title claim registered in South Australia. There are a number of applications before the Native Title Tribunal. See below and http://www.nativetitlesa.org/claims for more information. Native Title Applications (registered and unregistered, as at January 2014) • Adnyamathanha # 4 Native Title Claim • Adnyamathanha No. 1 • Adnyamathanha People Native Title Claim No. 3 • Barngarla Native Title Claim • Dieri No. 2 Native Title Claim • Kaurna Peoples Native Title Claim • Kokatha Uwankara Native Title Claim • Naley Native Title Claim • Ngadjuri Nation • Ngadjuri Nation # 2 • Ngarrindjeri and Others Native Title Claim • Nukunu Native Title Claim • Ramindjeri • The Wangkangurru/Yarluyandi Native Title Claim • Tjayiwara Unmuru Native Title Claim • Wilyakali • Wirangu No. 2 Native Title Claim • Yandruwandha/Yawarrawarrka Native Title Claim Native Title Determinations (as at January 2014) • Adnyamathanha People No. 1 (Angepena Pastoral Lease) • Adnyamathanha People No. 1 (stage 1) • Adnyamathanha People No. 2 • Antakirinja Matu-Yakunytjatjara • Arabana People • De Rose Hill • De Rose Hill Compensation Page 61 of 77 • • • • • • • • • • Dieri Native Title Claim Eringa Eringa No. 2 and Wangkangurru/Yarluyandi Eringa Part A proceeding Far West Coast First peoples of the River Murray & Mallee Region Gawler Ranges Native Title Claim Irrwanyere Mt Dare Native Title Determination Tjayiwara Unmuru Yankunytjatjara Antakirinja It should be noted that, subject to meeting the requirements of section 211 of the Native Title Act 1993, Aboriginal fishers are entitled to take aquatic resources in SA outside requirements of the Fisheries Management Act 2007 provided that it is established that they are: a) an Aboriginal person and native title holder in respect of the land/sea in which the activity is occurring a. the fishing activity in question forms part of the exercise of their customary native rights and interests, and b. the fishing activity was for the purpose of satisfying their personal, domestic, noncommercial community needs. In this management plan, and other management plans, a share of access has been allocated and set aside for the purpose of resolving these native title claims. There is little available information on the take of recreational species by the Aboriginal traditional fishing sector; however the small number of claims with fishery-related interests and negotiations to date has informed the share that has been put aside for this purpose. It should also be noted that the Aboriginal traditional sector’s share provided in this management plan, and other management plans, has been deducted from the recreational share. This is because Aboriginal traditional fishing is non-commercial fishing and this approach is consistent with the Allocation Policy. For most species a nominal share has been allocated to Aboriginal traditional sector of 1%, however, where the recreation allocation is less than 2% half the recreational allocation has been allocated. However, due to the unique arrangements for Lake Eyre Golden perch, the allocation to the Aboriginal traditional sector is 10% and during flood events 0.01% (which is 10% of the recreational allocation for both during non-flood and flood times). 14.4 Appendix 4: Spatial scale of allocations When determining the shares of aquatic resources to be allocated, it is important to clarify the spatial extent of the fishery to which the allocation applies. Shares for a species may be allocated in a number of ways including fishery boundaries, management regions, biological or stock boundaries or a single allocation across the State. For the purposes of the allocations provided in this management plan species have been allocated at a statewide perspective e.g Snapper. However, for some species allocations have been determined at the fishery level to better reflect management arrangements and stock boundaries within the commercial fishery management plans. That is, for some species two separate allocations have been made; e.g. Mullet spp. and Mulloway for the spatial area of the commercial Marine Scalefish Fishery (MSF) and the inland waters of Page 62 of 77 the Lakes and Coorong Fishery (LCF). These spatial areas for managing allocations also apply to the recreational share and are set out in Table 3. It is also noted that a statewide allocation may also increase the complexity surrounding the recreational allocation, and as regards management of those shares into the future where management changes are needed in one area. Where this is the case, the allocations specified in the commercial management plan, or the 2007/08 catch share for those areas, will also be considered in conjunction with the statewide allocation in this plan. For example the recent (July 2014) reduction in the recreational bag limit for Blue Swimmer Crabs was a spatial change which only applied in the Gulf St Vincent. The annual 2012/13 stock assessment report of the Blue Crab Fishery, published by SARDI Aquatic Sciences, showed that while the Blue Swimmer Crab Spencer Gulf fishery remained in a strong position the Blue Swimmer Crab Gulf St Vincent fishery was at a low level. As a result, a reduction in the recreational bag and boat limit for Blue Swimmer Crab as well as the Blue Swimmer Crab Total Allowable Commercial Catch (TACC) for the commercial sector for the 2014/15 season was implemented in Gulf St Vincent with no change in Spencer Gulf. The management change in this example was in response to concerns about the sustainability of the fishery, and also to maintain the proportional shares of the Blue Swimmer Crab resource allocated to each fishing sector. Shares are allocated between commercial and recreational fishers based on a percentage of the total weight (tonnes) of Blue Swimmer Crabs taken by all sectors. In terms of the weight of crabs taken by the recreational sector, the temporary halving of recreational bag and boat limits in Gulf St Vincent equates to less than the 20% TACC reduction being implemented in the commercial fishery. Pipi has been allocated by area based on the area of access enjoyed by each sector rather than a catch share. For Pipi each sector has some areas of exclusive access to fishing areas (beaches). As shown in Figure 3, the recreational sector has access to the Goolwa Beach on the Sir Richard Peninsula, from Port Elliot to the Murray Mouth 19 km and Kingston Jetty to 28 Mile crossing 45 km, which equates to 64 km. The commercial fishing sector has access to the Coorong Beach on the Younghusband Peninsula, from the Murray Mouth to Kingston SE, which equates to 173 kilometres. The allocation has therefore been calculated on a total access area of 237 km, given that both recreational and commercial fishing activity overlaps at Kingston Jetty to 28 Mile crossing. The total beach area equates to 192 km. Page 63 of 77 Figure 3: Commercial and recreational access to Pipi 14.5 Appendix 5: Temporal scale allocation- Lake Eyre Golden Perch The timing of fishing and the limited spatial scale of commercial fishing in the Lake Eyre Basin has been considered in the allocation of Lake Eyre Golden Perch. The allocation applies to a temporal scale, to better reflect catch shares. Consideration has been given to the distinct time scales when recreational and Aboriginal traditional fishing are the only sectors fishing (in times of non-flood) and when all sectors can fish, with commercial fishing only being permitted to operate in times of flood (PIRSA 2013). 14.6 Appendix 6: Recognising past allocation agreements For Southern Rock Lobster the allocation has taken into account an historical agreement from the commercial and recreational sector that was in place at the time the Rock Lobster management plans were requested by the Minister (PIRSA 2014 and PIRSA 2013c). The Management Plan for the South Australian Commercial Northern Zone Rock Lobster Fishery 2014 and the Management Plan for the South Australian Commercial Southern Zone Rock Lobster Fishery 2013 provide further detail to the history of these agreements. Page 64 of 77 14.7 Appendix 7: Species names Table 9: Species allocated, common names and scientific names. Species common name Species scientific names Abalone spp. Greenlip Haliotis laevigata Blacklip Haliotis rubra Australian Herring Arripis georgianus Australian Sardines Sardinops sagax Australian Anchovy Engraulis australis Balmain Bug Spencer Gulf Ibacus spp. Black Bream Acanthopagrus butcheri Blue Swimmer Crab Portunus armatus Bronze & Dusky Whaler Shark Dusky Whaler- Carcharhinus obscurus Bronze Whaler- Carcharhinus brachyurus Flathead (all species) Family Platycephalidae Golden Perch (Lake Eyre) Flood Maquaria sp. Lake Eyre sub species Golden Perch (Lake Eyre) Non-Flood Maquaria sp. Lake Eyre sub species Golden Perch (SAMDB) Maquaria ambigua Greenback Flounder Rhombosolea tapirina King George Whiting Sillaginodes punctatus King Prawns Spencer Gulf Melicertus latisulcatus Mullet spp. Marine Family Mugilidae L&C (inland) Family Mugilidae Marine Argyrosomus hololepidotus L&C (inland) Argyrosomus hololepidotus Mulloway Pipi (area based only in Coorong region) Donax deltoides Sand Crab Ovalipes australiensis Snapper Chrysophrys auratus Snook Sphyraena novaehollandiae Southern Calamari Sepioteuthis australis Southern Garfish Hyporhamphus melanochir Southern Rock Lobster Jasus edwardsii Trevally (Silver) Pseudocaranx dentex Vongole (Mud Cockle) spp. Suborder Teledonta Page 65 of 77 Yellowfin Whiting Sillago schomburgkii Yellowtail Kingfish Seriola lalandi 14.8 Appendix 8: Calculation of allocation triggers Trigger limits have been set based on a small percentage increase in allocation to allow for small fluctuations, but also detect large or ongoing change to the catch shares between the sectors. The percentage increases have been determined for allocation ranges, with a total of seven ranges. As a consequence of the use of ranges, without adjustment the upper allowable increase of one range may be higher than the allowable increases of the next range. To counter this, lower and upper limits have been determined for some ranges. In specifying the allowable percentage increases for a range, the lower the original allocation, the higher the allowable percentage increase and vice versa. This recognises that catches associated with low percentage allocations are generally highly variable and this variety needs to be accounted for. Percentage increases have not been determined for 0 and 0.01 – 0.49 allocations; rather an absolute increase has been specified for each of these. Different percentage allowances have been determined for the key important recreational/commercial species: see Table 7 and other recreational/commercial species see Table 8. The different allowances account for the variability in catches, the importance of the species to the sectors and the management need to minimise variability in sector catch shares. The tables below outline the allowable increases, absolute increases and the upper and lower limits for the different triggers. Table 10: Allocation trigger calculation table for triggers key important recreational/commercial species (King George Whiting, Australian Herring, Snapper, Southern Garfish, Southern Calamari, Blue Swimmer Crabs, Pipi, Golden Perch [SAMDB], Mulloway, Mullet spp., Southern Rock Lobster, Abalone). Allocation range Allowable % Increase Absolute increase Lower limit Upper limit 0 - 0.75 - - 0.01 - 0.49 - 1 - - 0.5 - 0.99 150 - - 2.5 1.0 - 4.99 100 - 2.5 - 5.0 - 39.99 50 - - 7.5 40 - 79.99 10 - 60 84 80 - 99.99 5 - - - Page 66 of 77 Table 11: Allocation trigger calculation table for other recreational/commercial species (Australian Sardine, Australian Anchovy, Black Bream, Bronze & Dusky Whaler Shark, Flathead, Golden Perch [Flood and Non Flood], Greenback Flounder, Sand Crab, Snook, Trevally, Vongole (Mud Cockle) Spp., Yellowfin Whiting, Yellowtail Kingfish). Allocation range Allowable % Increase Absolute increase Lower limit Upper limit 0 - 0.75 - - 0.01 - 0.49 - 1 - 0.5 - 0.99 200 - - 3 1.0 - 4.99 150 - - 9 5.0 - 39.99 100 - - 50 40 - 79.99 25 - - 88 80 - 99.99 10 - - - 14.9 Appendix 9: Recreational permitted fishing gear Subject to rules for their use, recreational fishers may use the following fishing gear to undertake recreational fishing activities: • Rod and handline • Bait fork • Bait pump • Bait spade • Bow and arrow (other than a crossbow) • Cockle rake • Crab net • Crab rake • Dip tin • Drop net • Hand fish spear • Hand net, including a dab net, dip net or shrimp net • Hoop net • Mesh net • Mussel dredge • Razorfish tongs • Rock lobster pot • Rock lobster snare • Shrimp trap • Spear gun • Squid jig • Yabby pot Page 67 of 77 15 ACRONYMS AFMA Australian Fisheries Management Authority COC Code of Conduct CL Confidence Limit CPUE Catch Per Unit Effort ESD Ecologically Sustainable Development EBFM Ecosystem Based Fisheries Management EPBC Act Environment Protection and Biodiversity Conservation Act 1999 FMA Fisheries Management Act 2007 FRDC Fisheries Research and Development Corporation ILUA Indigenous Land Use Agreement MPA Marine Protected Area MAG Management Advisory Group (generally a commercial group) NRIFS National Recreational and Indigenous Fishing Survey PIRSA Department of Primary Industries and Resources South Australia SARDI South Australian Research and Development Institute SCBOOA Surveyed Charter Boat Owners and Operators Association TACC Total Allowable Commercial Catch TEPS Threatened, Endangered and Protected Species Page 68 of 77 16 GLOSSARY OF COMMON FISHERIES MANAGEMENT TERMS These terms are intended to be used for the purposes of this management plan only and are not intended to be inconsistent with fisheries legislation. Aboriginal traditional fishing Fishing engaged in by an Aboriginal person for the purposes of satisfying personal, domestic or non-commercial, communal needs, including ceremonial, spiritual and educational needs, and using fish and other natural marine and freshwater products according to relevant Aboriginal custom. Adaptive management Management involving active responses to new information or the deliberate manipulation of fishing intensity or other aspects in order to learn something of their effects. Within a stock, several sub-stocks can be regarded as experimental units in which alternative strategies are applied. Age structure Numbers of fish in each age class from a sample of fish captured during a fishing season. Sometimes sampled separately for retained and discarded catch. An important data input for age-structured fisheries stock assessments Aggregation Group of fish that come together, often to feed or spawn. Allocation Distribution of the opportunity to access fisheries resources, within and between fishing sectors. Aquatic plant An aquatic plant of any species, including the reproductive products and parts of an aquatic plant. Aquatic reserve An area of water, or land and water, established as an aquatic reserve by proclamation under the Fisheries Management Act 2007. Aquatic resource Fish or aquatic plants. Bag limit The maximum number of fish of a species that a recreational fisher can legally take in any 24 hour period commencing at midnight. Benthic Describes animals that live on, in or near the substrate. Biodiversity The variability among living organisms from all sources (including terrestrial, marine and other aquatic ecosystems and the ecological complexes of which they are a part) and includes: (a) diversity within species and between species; and (b) diversity of ecosystems. Biological stock Functionally discrete population that is largely distinct from other populations of the same species and can be regarded as a separate entity for management or assessment purposes. Biomass The total weight or volume of individuals in a fish stock. Boat limit The maximum number of a species that can be legally taken by recreational fishers on a boat per day or per fishing trip, as specified. By-catch At a broad level, fisheries by-catch includes all material, living and non-living, other than targeted species which is caught while fishing. It includes discards (that part of the catch Page 69 of 77 that is returned to the water) and also that part of the catch that is not landed but is killed as a result of interaction with fishing gear. Catch The total amount (weight or number) of a species captured from within a specified area over a given period of time. The catch includes any animals that are released or returned to the water. Catch per unit effort (CPUE) The number or weight of fish caught by a unit of fishing effort (for example: kg (catch) per boat days fished, kg per person days, kg per fisher day etc.). It is often used as a measure of fish abundance. Closures Prohibition of fishing during particular times or seasons (temporal closures) or in particular areas (spatial closures), or a combination of both. Cohort A group of fish spawned during a specified period, usually within a year. A cohort is also referred to as an age class. Co-management Arrangements between governments and stakeholder groups to allow joint responsibility for managing fisheries resources on a cooperative basis. Co-management arrangements can range from a consultative model where stakeholders have an advisory role to government, to an informative model where co-managers have decision-making powers. Commercial fishing Fishing undertaken for the purpose of trade or business. Commercial quantity limit A commercial quantity limit under the Fisheries Management Act 2007 is a prescribed number of fish for a species that represents what is considered a commercial quantity of that species. If a person has the prescribed amount of fish in their possession, then the onus of proof is reversed in any prosecution relating to having to satisfy that they obtained the fish legally and/or are not for commercial gain. It is assumed in the absence of proof that they were for the purpose of sale. Common property resource A resource that is determined to be owned by the community, or by the State on behalf of the community, and to which no individuals or user groups have exclusive access rights. Critical habitats Habitats that are crucial in at least part of the life cycle of a species, which typically includes nurseries such as estuaries, mangroves, seagrass beds, reefs and defined spawning areas. Decision rules Agreed responses that management must make under predefined circumstances regarding stock status. Also called 'control rules' or 'harvest control rules'. Ecological Risk Assessment A tool used to evaluate the likelihood that adverse ecological effects could result from the exposure to a risk in the environment. Ecologically sustainable development Using, conserving and enhancing the community’s resources so that ecological processes, on which life depends, are maintained, and the total quality of life, now and in the future, can be increased. Ecosystem A dynamic complex of plant, animal, fungal, and micro-organism communities and the associated non-living environment interacting as an ecological unit. Effort Amount of fishing taking place, usually described in terms of gear type and frequency or period during which the gear is in use; for example, 'hook-sets', 'trawl-hours', 'searching hours'. Page 70 of 77 Environmentally limited Spawning stock biomass has been reduced to the point where average recruitment levels are significantly reduced, primarily as a result of substantial environmental changes/impacts, or disease outbreaks (i.e. the stock is not recruitment overfished). Fisheries management has responded appropriately to the environmental change in productivity. Appropriate management is in place. Fecundity Number of eggs an animal produces each reproductive cycle; the potential reproductive capacity of an organism or population. Fish An aquatic animal other than an aquatic bird, an aquatic mammal, a reptile or an amphibian. Fishery A term used to describe the collective enterprise of taking fish. A fishery is usually defined by a combination of the species caught (one or several), the gear and/or fishing methods used, and the area of operation. Fishery dependent data Information collected about a fishery or fish stock by the participants of a fishery, eg. catch and effort information from fishery log sheets. Fishery independent data Information collected about a fishery or fish stock by researchers, independent of the fishery, eg. scientific surveys, observer reports. Fishing mortality The rate of deaths of fish due to fishing. Gear restriction A type of input control used as a management tool to restrict the amount and/or type of fishing gear that can be used by fishers in a particular fishery. Gross value of production (GVP) Value of the total annual catch for individual fisheries, fishing sectors or the fishing industry as a whole, which is measured in dollar terms. GVP, generally reported on an annual basis, is the quantity of catch for the year multiplied by the average monthly landed beach prices. Habitat The place or type of site in which an organism naturally occurs. Harvest The total number or weight of fish caught and kept from an area over a period of time. Input controls A management tool that restrains fishing effort, includes restraints on who fishes (licence limitations), where they fish (closed areas), when they fish (closed seasons) and/or how they fish (gear restrictions). Length Frequency An arrangement of recorded lengths of a species of fish, which indicates the number of times each length or length interval occurs in a population or sample. Limited entry Fishing effort is controlled by restricting the number of operators. It usually requires controlling the number of licences in a fishery. It can also include restrictions on the number and size of vessels, the transfer of fishing rights, and the replacement of vessels Limit reference points The values of a performance indicators for a fish stock or fisheries management unit that are no longer considered acceptable. Logbook An official record of catch and effort data made by fishers. In South Australian commercial fisheries licence conditions make the return of logbooks mandatory. Marine park In South Australia, marine parks are a type of marine protected area proclaimed under the Marine Parks Act 2007 with the primary aim of protecting and conserving marine Page 71 of 77 biodiversity. South Australia’s marine parks are zoned and managed for multiple use to protect and conserve marine biodiversity while providing for the ecologically sustainable use of suitable areas. Minimum mesh size The smallest size of mesh permitted in nets and traps, imposed on the basis that smaller individuals will escape unharmed. Mortality Rate of deaths (usually in terms of proportion of the stock dying annually) from various causes. Comprises (i) Natural mortality — deaths in a fish stock from causes except fishing i.e. predation, pollution, senility, etc., and (ii) Fishing mortality — deaths in a fish stock caused by fishing. Non-target species Any part of the catch, except the target species, and including by-catch and by-product. Non-retained species Species that are taken as part of the catch but are subsequently discarded, usually because they have low market value or because regulations preclude them being retained. Offshore Constitutional Settlement (OCS) An agreement between the state(s) and the Commonwealth whereby the state or the Commonwealth (or in some cases a Joint Authority) is given jurisdiction for a particular fishery occurring in both coastal waters (low tide mark to 3 nautical miles [nm]) and the Australian Fishing Zone (3 nm to 200 nm). When no OCS agreement has been reached, the fishery remains under the jurisdiction of the state out to 3 nm, and the Commonwealth from 3 to 200 nm. Output controls Limitations on the weight of the catch (quota), or the allowable size, sex or reproductive condition of individuals in the catch. Overfished Spawning stock biomass has been reduced through catch, so that average recruitment levels are significantly reduced (i.e. recruitment overfished). Current management is not adequate to recover the stock, or adequate management measures have been put in place but have not yet resulted in measurable improvements. Management is needed to recover this stock; if adequate management measures are already in place, more time may be required for them to take effect. Population A group of individuals of the same species, forming a breeding unit and sharing a habitat. Possession Limit Possession limits restrict the quantity or total weight of fish that recreational fishers can catch and keep. Possession limits are a useful regulatory tool that prevents recreational fishers taking and stockpiling large quantities of fish. Precautionary principle This concept asserts that where there are threats of serious or irreversible damage, lack of full scientific certainty shall not be used as a reason for postponing measures to prevent environmental degradation. In the application of the precautionary principle, public and private decision-making should be guided by: (i) careful evaluation to avoid, wherever practicable, serious or irreversible damage to the environment; and (ii) an assessment of the risk-weighted consequences of various options. Primary indicator (Key performance measure) The main parameter used to assess the performance of a fishery against predetermined sustainability objectives. Quota Amount of catch (weight or numbers of fish) allocated to a fishery as a whole (total allowable catch), or to an individual fisher or company (individual transferable quota). Page 72 of 77 Recreational fishing Non-commercial and non-Aboriginal traditional activities of fishers who fish for sport or pleasure whether retaining (e.g. consuming, sharing) or releasing their catches. Recruitment The addition of new individuals to a stock. Recruitment overfished The point at which a stock is considered to be recruitment overfished is the point at which the spawning stock biomass has been reduced through catch, so that average recruitment levels are significantly reduced. Reference point Indicator of the level of fishing (or stock size); used as a benchmark for assessment. Relative abundance An index of fish population abundance used to compare fish populations from year to year. This does not measure the actual numbers of fish, but shows changes in the population over time. Retained species The species within the catch that are not discarded. Sample A proportion or a segment of a fish stock which is removed for study, and is assumed to be representative of the whole. The greater the effort, in terms of both numbers and magnitude of the samples, the greater the confidence that the information obtained is a true reflection of the status of a stock (level of abundance in terms of numbers or weight, age composition, etc.). Seasonal closure Closure of a fishing ground for a defined period; used as a management tool, often to protect a particular component of the stock e.g. used to protect a stock during a spawning season. Selectivity The ability of a type of gear to target and catch a certain size or species of fish. Socio-economic Relating to both social and economic considerations. Spatial Of or relating to space. Spatial closure A method of fisheries management that prevents fishing in a defined area. Species A group of organisms capable of interbreeding freely with each other but not with members of other species. Size limits A minimum or maximum legal size limit which determines the legal size at which a given species can be retained. Size of maturity Length or weight of the fish when it attains reproductive maturity. Slot size limit Refers to a situation where both a minimum and maximum size limit has been determined for a given species. Stakeholder An individual or a group with an interest in the conservation, management and use of a resource. Stock A group of individuals of a species occupying a well-defined spatial range independent of other groups of the same species, which can be regarded as an entity for management or assessment purposes. Page 73 of 77 Stock assessment A detailed analysis of stock status (abundance, distribution, age structure, etc.) to support the management of the species or fishery. Sustainable Stock for which biomass (or biomass proxy) is at a level sufficient to ensure that, on average, future levels of recruitment are adequate (i.e. not recruitment overfished) and for which fishing pressure is adequately controlled to avoid the stock becoming recruitment overfished. Appropriate management is in place Target species A species that is, or has been, specifically targeted and is, or has been, a significant component of a fishery. Target effort Effort that is directed at a particular species. Temporal Of or relating to time. Temporal closure Closure that is implemented to protect fish stocks during specific stages (time) of their life cycle (for example, while spawning). Total allowable catch (TAC) For a fishery, a catch limit set as an output control on fishing. The total amount of a species that may be taken during a specified time period. Total allowable commercial catch (TACC) For a fishery, a catch limit set as an output control specifically on commercial fishing. The total amount of species that may be taken by commercial fishing during a specified time period. Threatened A species or community that is vulnerable, endangered or presumed extinct. Traditional fishing Fishing for the purposes of satisfying personal, domestic or non-commercial communal needs, including ceremonial, spiritual and educational needs and utilising fish and other natural marine and freshwater products according to relevant Aboriginal custom. Transitional–depleting Deteriorating stock—biomass is not yet recruitment overfished, but fishing pressure is too high and moving the stock in the direction of becoming recruitment overfished. Deteriorating stock—biomass is not yet recruitment overfished, but fishing pressure is too high and moving the stock in the direction of becoming recruitment overfished. Transitional–recovering Deteriorating stock—biomass is not yet recruitment overfished, but fishing pressure is too high and moving the stock in the direction of becoming recruitment overfished. Appropriate management is in place, and the stock biomass is recovering. Trigger reference points The values of performance indicators for a fish stock or fisheries management unit at which a change in management is considered or adopted. Undefined Not enough information exists to determine stock status. Data required to assess stock status are needed. Vulnerable species Under endangered species protection legislation, a species that will become endangered within 25 years unless mitigating action is taken. Page 74 of 77 17 REFERENCES ABARES (2005). Australian Fisheries Statistics 2004, Canberra, 65p, Australian Bureau of Agricultural and Resource Economics. Bryars, S. (2003). 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Draft Ecological Risk Assessment for the Effects of Fishing: Gillnet, Hook and Trap Fishery (v7). In Hobday, A., A.D.M. Smith and I. Stobutzki. Ecological Risk Assessment for Australian Commonwealth Fisheries. Final Report - Stage 1. Hazard identification and preliminary risk assessment. July 2004. Report to the Australian Fisheries Management Authority, Canberra, Australia Page 77 of 77