13. Fishery-Specific Management System
13.2 Fishery-Specific Objectives
for the finfish and blue swimmer crab resources of the PHE, which have been approved by industry and are publically-available on the Department’s website (DoF 2105a, b).
The fishery-specific management system contains a range of strategies (as described throughout the MSC Principle 1 and Principle 2 sections of this document) to meet these objectives, with sufficient monitoring in place to assess the extent to which each objective is being met.
Ecological Sustainability 13.2.1
The long-term ecological objectives for the WCEMF and the Peel-Harvey Estuary Blue Swimmer Crab Recreational Fishery are consistent with achieving the outcomes expressed in MSC Principles 1 and 2. They focus on ensuring the biological and ecological sustainability of all captured aquatic resources, as well as ensuring the fisheries does not result in serious or irreversible harm to any ecosystem components:
1) To maintain spawning stock biomass of the target species (i.e. sea mullet and blue swimmer crabs) at a level where the main factor affecting recruitment is the environment;
2) To maintain spawning stock biomass of each other retained species at a level where the main factor affecting recruitment is the environment;
3) To ensure fishing impacts do not result in serious or irreversible harm40 to bycatch species populations;
4) To ensure fishing impacts do not result in serious or irreversible harm to ETP species populations;
5) To ensure the effects of fishing do not result in serious or irreversible harm to habitat structure and function; and
6) To ensure the effects of fishing do not result in long-term serious or irreversible harm to ecological processes.
Long-term management objectives are typically operationalised as short-term (annual) objectives through one or more performance indicators that can be measured and assessed against pre-defined reference levels so as to ascertain actual performance. Thus, within the context of the long-term objectives, each fishery (commercial and recreational) has operational objectives to maintain each resource / component above the threshold level (and, where relevant, close to the target level), or rebuild the resource if it has fallen below the threshold or the limit levels.
Lists of the short-term objectives for the finfish and blue swimmer crab resources of the PHE are provided in Table 13.1 and Table 13.2, respectively.
40 Serious or irreversible harm relates to a change caused by the fishery that fundamentally alters the capacity of the component to maintain its function or to recover from the impact.
Table 13.1. Short-term ecological objectives in place for each component of the finfish fishery in the PHE. The performance indicators and reference levels used to assess the extent in which the fishery has met these objectives is provided in the Finfish Resources of the Peel-Harvey Estuary Harvest Strategy.
Component Short-term Operational Objectives Target species:
Sea mullet
• Annual standardised commercial catch rate is within target catch rate range; and
• Annual commercial catch is within target catch range.
Other retained species:
Yelloweye mullet, yellow- fin whiting, Australian herring and tailor
• Annual commercial catch of each species is less than maximum catch of that species observed during the reference period; and
• Fishing impacts generate an acceptable level of risk to retained species stocks (i.e. moderate risk or lower).
Cobbler • Annual catch rate is greater than 6 kg / fishing day;
• Annual commercial catch is less than maximum catch of cobbler observed during the reference period (i.e. 9 tonnes); and
• Fishing impacts generate an acceptable level of risk to cobbler stocks (i.e. moderate risk or lower).
Perth herring • Annual commercial catch is less than maximum catch observed during the reference period (i.e. 2.7 tonnes); and
• Fishing impacts generate an acceptable level of risk to Perth herring stocks (i.e. moderate risk or lower).
All other retained species • Annual commercial catch of each other retained species is < 5 % of the total retained catch; and
• Fishing impacts generate an acceptable level of risk to all other retained species stocks (i.e. moderate risk or lower).
Bycatch • Fishing impacts generate an acceptable risk level to all bycatch species populations (i.e. moderate risk or lower).
ETP species • Fishing impacts generate an acceptable risk level to all ETP species populations (i.e. moderate risk or lower).
Habitats • Fishing impacts generate an acceptable risk level to habitat structure and function (i.e. moderate risk or lower).
Ecosystem • Fishing impacts generate an acceptable risk level on ecological processes within the estuary (i.e. moderate risk or lower); and
• Fishing impacts generate an acceptable risk level for each ecological resource / asset within the PHE (i.e. moderate risk or lower).
Table 13.2. Short-term ecological objectives in place for each component of the blue swimmer crab fishery in the PHE. The performance indicators and reference levels used to assess the extent in which the fishery has met these objectives is provided in the Blue Swimmer Crab Resource of the Peel-Harvey Estuary Harvest Strategy.
Component Short-term Operational Objectives Target species:
Blue swimmer crab
• Annual standardised commercial catch rate is within target catch rate range (i.e. 0.7 – 1.4 kg / traplift); and
• Annual commercial catch is within target catch range (i.e. 45 – 104 tonnes).
Other retained species • Annual catch of each species is < 5 % of the total retained catch for each fishing sector; and
• Fishing impacts generate an acceptable level of risk to retained species stocks (i.e. moderate risk or lower).
Bycatch • Annual catch of each species is < 5 % of the total catch for each fishing sector; and
• Fishing impacts generate an acceptable level of risk to bycatch species populations (i.e. moderate risk or lower).
ETP species • Fishing impacts generate an acceptable level of risk to ETP species populations (i.e. moderate risk or lower).
Habitats:
Benthic habitats — commercial trap and recreational drop net
• Fishing impacts generate an acceptable level of risk to habitat structure and function (i.e. moderate risk or lower).
Nearshore habitats — recreational scoop net
Ecosystem Processes • Fishing impacts generate an acceptable level of risk to ecological processes within the estuary; and
• Fishing impacts generate an acceptable level of risk to ecological resource / asset within the PHE (i.e. moderate risk or lower).
Social and Economic Objectives 13.2.2
As discussed in Section 12.3, one of the long-term objectives of the FRMA is to achieve the optimum economic and social and other benefits from the use of fish resources for both direct stakeholders (e.g. the commercial fishing industry, recreational fishers, customary fishers, conservation sector) and indirect stakeholders (e.g. the tourism sector, fishing tackle suppliers, restaurants and retail sector, consumers and the wider WA community). In line with the Department’s Harvest Strategy Policy (DoF 2015c) and the principles of ESD, the PHE fisheries also have explicit long-term social and economic objectives in place.
As outlined in full in the harvest strategies for the finfish and blue swimmer crab resources of the PHE (see DoF 2015a, b), the social and economic objectives for these fisheries relate to the provision of opportunities to ensure (1) commercial fishers can maximise their livelihood in supplying seafood to the community and (2) that all fishers can maximise cultural,
recreational and / or lifestyle benefits of fishing. Performance against the objectives is generally monitored through the formal consultation process in place, in which regulatory impediments to maintaining social and economic returns, or opportunities for enhancing these, are discussed. Where possible, and in due consideration of ecological sustainability, fisheries management arrangements can be adjusted or reformed to help meet these objectives.
As the commercial and recreational fishing sectors are provided formal access rights to the blue swimmer crab resource of the PHE through IFM, performance against the second of the above objectives is also measured for blue swimmer crabs by comparing the catches of this species by each sector against their allowable catch ranges41 (DoF 2015b).
It is important to note that management actions relating to social and economic objectives are applied within the constraints of ecological sustainability and that fisheries managers cannot always address the causes of constraints on access to fishing activities, as these may be due to environmental or other factors.
13.3 Decision-Making Processes
There are established decision-making processes in the WCEMF Area 2 and the Peel-Harvey Estuary Blue Swimmer Crab Recreational Fishery that result in measures and strategies to achieve the objectives listed above in Section 13.2. These processes are understood by all stakeholders and underpinned by explicit and transparent consultation.
Decision-making processes can also be triggered following the identification of new or potential issues as part of an ecological risk assessment (generally reviewed every 3 – 5 years), results of research, management or compliance projects or investigations, monitoring or assessment outcomes (including those assessed as part of the Harvest Strategy) and / or expert workshops and peer review of aspects of research and management, e.g. the 2010 external review of the blue swimmer crab fishery in the PHE (see Appendix C).
Once an issue has been identified, mitigation measures are developed and implemented in consultation with industry. Alternatively, if appropriate, additional research may be undertaken, with research results used to inform management action. There are two main processes for making decisions about the implementation of management measures and strategies in the the WCEMF Area 2 and the Peel-Harvey Estuary Blue Swimmer Crab Recreational Fishery:
• Annual decision-making processes that may result in measures to meet the short-term fishery objectives (driven by the control rules contained in the harvest strategies); and
• Longer-term decision-making processes that result in new measures and / or strategies to achieve the long-term fishery objectives (i.e. changes to the management system).
However, if there is an urgent issue, stakeholder meetings may be called to discuss the issue and determine appropriate management action, as needed.
Annual Processes 13.3.1
The harvest strategies for the finfish and blue swimmer crab resources of the PHE guide management responses in the event that a short-term objective is not met (i.e. the performance indicator is not maintained above the threshold reference level following an annual assessment).
In the case that a performance indicator has breached a threshold level but not reached the limit level, the harvest control rules require research and management staff o undertake a review of the reasons for the variation. This review includes an investigation of any changes that may have taken place in the fishery (e.g. targeting, methods, gear, seasonality, etc.), environmental factors, such as variations in weather or water temperature, or other external factors, such as changes in any market forces that influence fishing effort (e.g. fuel prices, demand, etc.). This review is may be undertaken in conjunction with the licence holders, as they provide many of the details needed during the review process (e.g. changes in effort).
The outcomes from the previous season’s assessment against the defined reference levels (including any additional reviews undertaken as described above) are provided to industry by the Department at the AMM. It is at this stage that any issues arising from the annual evaluation of the fishery’s performance are discussed. Where sustainability is considered to be at risk, stakeholder meetings will be called to discuss the issue and appropriate changes to the management arrangements to be implemented for the following fishing season.
While this has not occurred in the PHE, an example of such a process can be taken from the blue swimmer crab fishery in nearby Cockburn Sound. Stakeholders were advised at the AMM in December 2013 that there were concerns about the sustainability of the resource (i.e. for a different stock to that in the PHE). Between December 2013 and March 2014, the Department conducted a review of available data from commercial monitoring and fishery- independent surveys, with results confirming poor levels of recruitment and a decrease in catch rates and overall catch. This information was provided to stakeholders and the commercial fishery was voluntarily closed in April 2014, after the catch rates reached a limit of 0.5 kg/trip lift in March 2014. The blue swimmer crab recreational fishery in Cockburn Sound was closed in May 201442.
Long-Term Processes 13.3.2
There is also an established decision-making process in place to ensure the long-term management objectives are met. This process is triggered primarily as a result of analysing longer-term patterns or trends in the annual fishery performance. Variations in the operating environment caused by other factors (e.g. environmental conditions, market forces, fishing behaviour, conflicts with other user groups, marine planning, etc.) can also trigger an investigation and discussion that may lead to more-permanent changes (i.e. lasting more than one season) in the management system.
42 See http://www.fish.wa.gov.au/About-Us/Media-releases/Pages/Early-closure-of-Cockburn-Sound-crab-fishery.aspx
Longer-term changes are often implemented in legislation. The decision-making process that results in changing legislation involves a high level of consultation with industry and other stakeholders that may be affected by the change. In developing management options, consultation is undertaken with affected parties and relevant experts through a number of mechanisms, including:
• Directly in writing;
• At licensee meetings;
• At internal workshops, e.g. harvest strategy development, compliance risk assessments;
• Through the establishment of a tasked working group; and / or
• As part of external / expert workshops (e.g. risk assessments).
These forums are used to work through options for addressing emerging issues and provide the opportunity for decision-makers to consider all interested stakeholder advice. Comments provided during this process also allow managers to take into account the broader implications of management options.
Following this consultation process, any new proposed management measures or strategies that require changes to legislation or publication are provided to the statutory decision-maker (usually the DG or the Minister) by the relevant Departmental aquatic management staff.
For example, at the July 2012 AMM for the WCEMF, the MLFA requested an extension to the permitted operational hours in the PHE to allow sufficient time to retrieve gear during periods of bad weather conditions. After noting this request, the Department consulted with Recfishwest and received support for the proposed changes. The Department forwarded advice and recommendations to the Minister seeking approval to amend the interim management plan to change the operational hours in the fishery. The Minister approved these recommendations and consequently the management plan was amended prior to the AMM held in October 2013.
Responsiveness of Processes 13.3.3
The governance system in place allows for a timely response in instances where management changes need to be applied to alleviate unacceptable risks to stocks. The timing of provision of scientific advice on the status of stocks is concomitant with the risk levels for particular species, thus it varies between different fisheries. However, once advice is received, there is a prompt process to review this advice for scientific rigour and develop management actions.
For example, following community concerns about a potential shift in recreational fishing effort for blue swimmer crabs to the PHE (and other nearby areas) after the closure of the fishery in Cockburn Sound in 2006, the recreational fishing bag and boat limits for this species in the WCB were halved to 10 blue swimmer crabs per person and 20 crabs per boat.
The effectiveness of this management change in reducing catch is evident from data collected
boat fishers caught the new boat limit of 20 crabs in the peak fishing months of January- March.
Section 43 of the FRMA provides the power for immediate action by allowing the Minister for Fisheries to prohibit fishing activities (i.e. close an area to fishing) or prohibit a specific fishing activity (i.e. trap fishing) should information come to hand that indicates an unacceptable risk. Should immediate action be required, section 65(4) of the FRMA provides for the Minister to amend a management plan without consultation if, in the Minister’s opinion, the amendment is required urgently or is of a minor nature (but must provide advice following the amendment of the plan).
Use of Precautionary Approach 13.3.4
The EBFM process used by the Department provides the operating basis for implementing sustainable fisheries and ecosystem management by identifying ecological assets in a hierarchical manner and identifying the risks associated with them. Thus, the levels of knowledge needed for each of the issues only need to be appropriate to the risk and the level of precaution adopted by management.
Where reliable stock status information is lacking, the reference levels for captured resources and / or other ecological components have been set at precautionary levels. For example, the reference levels for bycatch species have been set to reflect the outcomes of periodic (every 3 – 5 years) risk assessments. The target reference level is that fishery impacts generate an acceptable risk level (e.g. moderate risk or lower [as per Fletcher 2005]). However, should substantial changes to fishery operations or management be introduced, a review of the risk levels is undertaken to determine any changes in the risk to bycatch species. Where fishing impacts are considered to be at an unacceptable risk level (e.g. high risk or above), appropriate management strategies will be implemented to reduce the risk back to an acceptable level.
The control rules in place for the finfish and blue swimmer crab resources of the PHE (as per the harvest strategies) also incorporate a precautionary approach into the decision-making process by requiring a review of the fishing activities and management arrangements when a threshold reference level is breached (i.e. prior to reaching the limit level). The use of a threshold level provides for an inherent ‘warning system’, with any potential issues recognised, investigated and potentially addressed while in their early stages. The frequency of evaluation (annual) and review allows for management action to alleviate adverse impacts before a limit level is reached and long-term sustainability may be compromised. An example of this can be seen in the recent closure of the Cockburn Sound blue swimmer crab fishery (see Section 13.3.1).
Accountability and Transparency 13.3.5
The Department is required to provide evidence of consultation and the results of the decision-making processes. This evidence is usually provided in the form of formal
Departmental publications and is made available on the Department’s website43. The implementation of any new statutory arrangements must also be formally communicated to the licence holders and other stakeholders in writing.
The Department regularly reports to key stakeholders on annual fishery performance, including information on fishery outcomes, management actions and relevant findings and recommendations from research, monitoring, evaluation and review activities. This information is primarily provided to licence holders and other stakeholders at the AMMs.
Comprehensive information on each of the State-managed fishery’s performance, management system and actions, research, monitoring, and other activities are also compiled regularly and published in a number of publically-available documents, including:
• The annual Status Reports of the Fisheries and Aquatic Resources of Western Australia: the state of the fisheries (e.g. Fletcher & Santoro 2014);
• The Department’s Annual Report to Parliament;
• The Research, Monitoring, Assessment and Development Plan (e.g. DoF 2012b;
currently being updated); and
• Fisheries Management Papers (FMPs), Fisheries Research Reports (FRRs), Fisheries Occasional Papers (FOPs) and peer-reviewed scientific journal articles. For example:
• FRR No. 258: “Assessment of the blue swimmer crab recruitment and breeding stock levels in the Peel-Harvey Estuary and status of the Mandurah to Bunbury Developing Crab Fishery” (Johnston et al. 2014a).
All of the fishery-specific management information, including the FRMA, FRMR, the WCEMF Management Plan and the harvest strategies for the finfish and blue swimmer crab resources of the PHE are also publically available on the State Law Publisher and the Department’s websites.
Examples to demonstrate transparency of decision-making relevant to the WCEMF and the Peel-Harvey Estuary Blue Swimmer Crab Recreational Fishery are provided in Table 13.3 and Table 13.4.