The TOFWG was established by the Hon Monty House MLA, Minister for Fisheries, in recognition of the growing importance of the aquatic carp industry and in recognition of the need to ensure that the development of this industry occurs in an ecologically sustainable framework across the State. The Minister for Fisheries will consider the submissions on this document when making decisions about the future management of the water charter industry in WA. This discussion paper is the result of extensive consultation with the water card operator industry by the TOFWG.
That a government-wide approach to managing the water sports charter industry is recognized as most beneficial to the industry and governing bodies. That the marine charter industry develop codes of conduct to encourage conservation-oriented fishing practices and environmentally sound business standards. That the marine charter industry encourages the development of industry associations to adhere to the above recommendations.
INTRODUCTION
WA’s aquatic environment: basis of the aquatic charter industry
Need for a strategy on future management
The ability of commercial fishermen to participate part-time in the water sports charter industry is an issue that has implications for both of the points mentioned above.
Obtaining information on the aquatic charter industry
WA’S AQUATIC CHARTER INDUSTRY
Industry profile
Currently, the Department of Fisheries does not actively manage the sectors of the aquatic charter industry that are under FRMA's jurisdiction. To conserve fish stocks and their habitats important to the sustainability of the aquatic carp industry. There are now 135 confirmed water operators in WA offering services which include charter fishing.
Aquatic charter companies are not currently required to have a license from the Fisheries Department to operate in WA waters.
Regulations governing aquatic charter industry
Department of Transport
The Ministry of Transport inspects vessels and issues permits to ensure that the vessel is safe for the intended type of work.
Department of Conservation and Land Management
In addition, statewide water charter operators who interact with marine wildlife such as whales must be licensed by CALM.
Fisheries Department
Integrated management
CONSERVATION AND SUSTAINABILITY ISSUES
That a new category of license be introduced under the Fish Resources Management Act 1994 (WA) (FRMA) to license water charter operators under the jurisdiction of the FRMA. Further development of zonal access management should be subject to consultation with the water sports charter industry and should be consistent with regional fisheries. That all licensed operators of water charters be required as a licensing condition to submit a periodic and detailed survey log to the fishery.
That the apex association of the aquatic charter industry be given recognition on the Recreational Fishing Advisory Committee (RFAC) in the same manner as the WA Recreational and Sport Fishing Association.
Objectives
Current issues and recommendations
Resource allocation
Growth of industry
Excess capacity in industry
Dual licensing and risk of escalating effort
Lack of integration with management of other sectors
Unknown catch and unknown impact on resource
Localised stock depletion
Deepwater fish: survival
ECONOMIC ISSUES
In recognition of the differences between the aquatic charter industry, the commercial fishing industry and the recreational fishing sector, the aquatic charter industry should be recognized as a distinct user group of aquatic resources for the purposes of industry management and consultation. During the seven-year period from 1990 to 1997 there was a 337% increase in the number of water charter operators. The introduction of a licensing system for water card operators falling under FRMA's jurisdiction would allow the growth of the water card industry in WA to be monitored and controlled.
It is envisaged that water charter operators would be licensed based on entry criteria that include a track record in the industry. This does not include water charter operators whose activities fall under CALM's management jurisdiction. In dealing with the issue of licensing water charter operators, the TOFWG had to take serious account of national competition policy.
By discussing this issue at length, the TOFWG has attempted to develop views on the future management of the water card industry that will be defensible in light of the necessary legislative revisions. The introduction of a licensing system that has the potential to restrict access, where required, to the water card industry could be seen as introducing anti-competitive legislation. However, TOFWG strongly believes that a legislative framework that can limit access is essential not only for the future management of the aquatic charter industry, but also for fish and fish habitat in general.
That a new category of license under the Fisheries Resource Management Act 1994 (WA) be introduced to license water charter operators falling within the jurisdiction of the Act. As there is very little data available to the Department of Fisheries on the activity of aquatic charter operators, it is likely that the introduction of a licensing system will not eradicate all latent efforts that exist. As previously explained, the water card industry is one of the three main groups of water users.
However, only limited historical data through the Department of Fisheries' catch and effort database is available to determine the relative impact of the aquatic charter industry on fishery resources.
Objectives
Current issues and recommendations
Level of potential effort is too great for operator viability
Mobility of fleet
Justification for licensing on a regional basis
Access fees and cost recovery
Management costs
ENVIRONMENTAL ISSUES
There has been significant growth in the number of participants in WA's aquatic charter industry, but there is no information on how large an aquatic charter industry WA may be able to sustain either economically or biologically. An aquatic charter operator would be someone who provides a fee-for-service charter defined as either a fishing or aquatic ecotourism trip. Understanding to ensure that existing licensing schemes administered by CALM and the aquatic charter license proposed in this document are managed in a coordinated and cooperative manner to ensure protection of environmental and other resource values and sustainability of aquatic charter operators.
To be issued with an aquatic charter license under the Act, the applicant must demonstrate involvement as an aquatic charter operator (charter fishing or aquatic ecotourism) in the period from July 1, 1993 to June 30, 1996. For the license to apply to water charter operations, as defined above, in State and Commonwealth waters of the Australian Fishing Zone and be required for both resident and non-resident operations. Under current access arrangements, there is a large amount of latent (untapped) fishing capacity within the water charter industry, and this becomes more apparent during peak tourist seasons.
If large amounts of latent effort remain within the marine charter industry, the effectiveness of individual catch controls as a management measure will be seriously compromised. In addition, some water charter operators also have other authorizations (for example, managed fishing licenses) that entitle them to operate in certain managed commercial fisheries. A range of activities are offered by water charter operators, and they can be classified as either non-consumptive (sightseeing, snorkeling, scuba diving, and wildlife interaction) or consumptive (line fishing and spear fishing).
That all licensed aquatic charter operators be required, as a condition of licence, to submit a periodic and detailed survey log to the Department of Fisheries or CALM as appropriate. Anecdotal evidence from aquatic operators and recreational fishermen suggests that this is already happening in many key areas, particularly among demersal and semi-resident fish such as bream, gropers, cod, snappers, emperors and coral trout. Some water charter operators claim to "farm" their popular fishing spots by encouraging limited catches per trip at each location.
Additionally, as explained in the previous chapter, aquatic charter operators' fleets are highly mobile and tend to target tourist "hotspots" to maximize their customer base.
Objectives
Current issues and recommendations
Number of participants in limited areas
SOCIAL ISSUES
That the catch from charter fishing operations be recognized as part of the total recreational catch. The concept of cost for some operators and customers can be translated into the number of fish caught or fixed relative to the cost of the trip. Legislative review guidelines to assist in the implementation of the National Competition Policy (Government of Western Australia 1997).
The TOFWG did not endorse this category because of the complex licensing arrangements that would result. Revenue from license fees will be directed into a trust fund for the future management and development of the industry.
Objectives
Current issues and recommendations
Infrastructure
Industry image
Management advice: representative structure
Although SA does not currently require operators within the charter vessel industry to be licensed, the Department of Primary Industries South Australia (PISA), Fisheries will release a draft proposal entitled Charter Management Proposal. The draft proposal is to provide charter fishing opportunities both to registered owners of vessels that do not hold a commercial fishing license but engage in charter operations, and to commercial fishermen who engage in charter fishing. Therefore, charter operators will be required to demonstrate compliance with this law prior to registration as a charter fishing operator.
To help enforce both the charter fishery and commercial fishing, charter operators holding a commercial fishing license will be required to advise PISA Fisheries at the start and end of a charter fishery. A new type of licensing and registration system will be introduced to distinguish between the two types of operations. The current government cost recovery policy, which aims to allocate administration/management, compliance and research costs associated with a fishing sector and cover the costs through license fees, will apply to the charter fishing industry.
These states do not propose any measures to improve the management of the respective charter industries in the short term. In the northern part of the zone, activities are mainly shore-based and consumptive, while in the south there is a mix of consumptive and non-consumptive activities. When the data in table C1 are combined with the expected size of the industry in the year 2010, as has been done in table C2, the effects of open access begin to become apparent.
For the purposes of this discussion paper, questionnaire recipients were asked to describe the type of tour they provided. Figures C5 and C6 illustrate the breakdown of the cruises offered by coastal area: first in whole numbers and then in percentages for onboard cruises.
