Measurement of Fisheries Compliance Outcomes: A Preliminary National Study
Compliance, research and policy are the cornerstones of the tripartite approach to fisheries management and sustainability but there is a need for regulators to demonstrate that compliance programmes are delivering efficient and effective outcomes. Past experience with government audit and third party accreditation of compliance service delivery indicates that there is a lack of a credible, reviewable framework for measuring fisheries compliance outcomes that can readily demonstrate value for money and an assessment of quality.
Delivering effective fisheries compliance is expensive and while cost minimisation is generally admirable, reduction of compliance resources beyond a certain point will certainly lead to poor outcomes for sustainability and regulator reputation (Sutinen and Kuperan 1990). An inability to pinpoint critical minimum resourcing levels to maintain compliance outcomes is highly likely to result in reduction of resource levels below that minimum level.
Stakeholders in fisheries resources (both extractive and non-extractive) need fisheries compliance outcome measures for two reasons: to be assured that compliance resources are being optimally used to deliver efficient and effective compliance programmes, and to know that the management framework is effective and trigger changes if necessary. Subjective perceptions of adequacy are insufficient.
Suitable measures of compliance outcomes must be adaptable to different fisheries and sectors, practical for jurisdictions to implement, support management objectives and recognise that the governance framework itself may not be appropriate for optimal compliance. Fisheries management is often dynamic, biologically and politically, so any outcome indicators must be able to accommodate that dynamism.
This project addresses the FRDC Strategic Priority Area objective of "Develop more cost-effective, efficient regulatory processes and co-management arrangements" from Theme 5 of the Industry Program. It is relevant to the national research and development priority of an environmentally sustainable Australia and the rural research priority of natural resource management.
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Establishing baselines and assessing vulnerability of commercially harvested corals across northern Australia
Australia’s aquarium industries are high value (collectively GVP values >$20 million), small scale fisheries that rely on exporting CITES listed corals for profitability and viability. The Australian government requires fisheries collecting and exporting CITES listed species to demonstrate that their harvest is sustainable. This is achieved through the provision of a successful non-detrimental finding and accrediting the fishery as an approved Wildlife Trade Operation (WTO) under the EPBC Act. There is growing international pressure for Australia to unequivocally demonstrate sustainable collection practices for CITES listed species. However, data-poor fisheries like the aquarium fisheries, struggle to provide sufficient quantitative data supporting the non-detrimental use of CITES listed species. This has resulted in severe restrictions on allowable harvest levels tied to WTO approvals and industry viability is at risk.
Many of the coral species taken by the marine aquarium industry across northern Australia are in inter-reef turbid water environments that are poorly studied. In addition, many of the species are documented as rare or uncommon although they may be locally abundant in these turbid waters environments. A recent Ecological Risk Assessment of the Queensland Coral Fishery (May 2013) identified the priority need to fill these data gaps to better quantify the level of impact on corals from commercial collection.
Abundance baselines for these species are required to demonstrate sustainable use and support export approvals. Species identification of harvested corals also needs to be clarified as this information is critical for aligning catch data with scientific information on the vulnerability of different coral species. This will lead to the development of monitoring protocols for the industry, and in the longer term, to demonstrate sustainable harvest.
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Project products
An industry based mark recapture program to provide stock assessment inputs for the Western Rock Lobster Fishery following introduction of quota management
Mitigation measures to reduce entanglements of migrating whales with commercial fishing gear
Fisheries Managers' Workshop
Holding a national forum for fisheries managers (across a range of levels) from all jurisdictions has been identified as a way of increasing the skills and understanding of the Australian fisheries managers' community and improving communications between the various jurisdictions on management matters.
The workshop will also provide an opportunity to further develop (and road-test) the outputs of AFMF's Fisheries Management Sub-Committee on the AFMF task of 'Developing Cost Effective and Efficient Management of Small Scale Fisheries'.
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A national fisheries management workshop was held at the South Australian Aquatic Sciences Centre in Adelaide on 26/27 March 2014, which brought together fisheries managers from all Australian jurisdictions. The idea of holding a workshop was promoted by the Australian Fisheries Management Forum (AFMF) (composed of the Heads of Commonwealth and State/Territory fishery management agencies), which had identified that there was no forum for fisheries managers to exchange ideas and build networks. The task of putting the workshop together was undertaken by AFMF’s Fisheries Management Sub-Committee (FMSC), with funding support being provided by the Fisheries Research and Development Corporation (FRDC).
The workshop was the first fisheries managers’ workshop since 1995, when the last of a successful series of fisheries managers’ workshops run during the late 1980’s and early 1990’s was held on Rottnest Island, WA. In promoting the idea of a workshop AFMF noted that while there was significant cross-fertilisation between researchers through the Australian Society for Fish Biology and other forums and through National Compliance Committee for compliance officers, there was no forum specifically for fisheries managers. As fisheries management had increased in complexity, and society was placing additional scrutiny on fisheries managers, there was a need for fisheries managers to meet as a group of professionals to exchange ideas and initiatives.
In considering a theme for the workshop FMSC noted that there was significant interest in the issues surrounding small-scale fisheries (SSFs) and that many if not most issues with SSFs were common across all the jurisdictions. Furthermore, FMSC had been tasked by AFMF to consider matters around SSFs and provide advice back to AFMF on the development of cost effective and efficient management of SSFs. Thus a workshop provided an ideal opportunity to explore the issue of SSFs and to look at issues and approaches in the various jurisdictions to see if there were any learnings that could be incorporated into FMSC’s advice to AFMF.
Tactical Research Fund: Improving efficiency in generating submissions and consistency of outcomes for MSC based assessments
The Government of WA, in collaboration with industry, has initiated an ambitious program to have all commercial fisheries in Western Australia undergo MSC certification. All commercial fisheries will undergo pre-assessment by the end of 2014. Any fishery that chooses to undergo full MSC assessment will have the initial certification costs funded which will begin in 2014. A number of issues have arisen during the establishment of this process that need to be addressed prior to the end of the pre-assessment process and especially before many fisheries move to full assessment.
Direct experience with MSC assessment process for the rock lobster fishery, plus reviews of the MSC process (MRAG, 2011) have shown that once initial ‘scores’ or opinions have been established for a fishery, these scores and opinions strongly dictate the outcome and the subsequent level of conditions established for the fishery to either gain or maintain certification. In going from pre to full assessments, the scores may go down, but almost never go up (MRAG, 2011). Lower scores that require undertaking activities to ‘close off’ conditions, especially for Principle 2 (ecological) criteria is where the costs of MSC certification can become prohibitive These costs can be significantly greater than the direct MSC assessment or audit costs; for rock lobster this has run into many $millions. It is essential, therefore, that the number of 'unecessary' conditions, particularly those requiring collection of more information (which is the most common condition applied, MRAG, 2011) are minimised to avoid unnecessary costs for industry and government.
An additional complexity is the Fishery Standard Review (FSR) currently being undertaken by MSC. This has proposed changes for P1 and P2 whcih could significantly alter how we approach MSC assessments and therefore need to directly test the impacts of these proposed changes.
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Tactical Research Fund: Cost-effectiveness of mitigation measures to reduce interactions between commercial fishing gear and whales
Whale entanglements are a key performance indicator (KPI) for the WRL fishery in Commonwealth
assessments. Entanglements in 2012 (13 in WRL gear) exceeded this KPI. The KPI breach resulted in
the Commonwealth removing the WRL fishery from the List of Exempt Native Species which is a five
year export approval without conditions and issuing a two year Wildlife Trade Order (WTO) with
conditions and recommendations relating to whale entanglement. This included a condition: "by 31
March 2014, complete a robust evaluation of longer term operational management measures to
reduce the risk of whale entanglements, which could include the removal of some restrictions on
western rock lobsters, spatial and seasonal closures and potential gear modifications". If this condition
isn't met, the WTO may be revoked and therefore the
fishery will not be able to export. The WRL is almost exclusively an export fishery with an estimated
annual GVP of $200 million.
The reason for increased entanglements is a combination of whale population growth (10% p/a) and
an increase in winter fishing resulting from a relaxation of input controls after a move to quota. A
closed season, removing winter fishing would somewhat elevate this issue, although at an economic
cost to the industry as it would no longer be able to attain the high beach prices paid in winter. This
would result in a conservative loss of about $50 million p/a in GVP. Therefore to meet the SEWPaC
conditions, and still allow winter fishing, entanglement mitigation measures are needed.
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The Australian Animal Welfare Strategy (AAWS): Development of welfare guidelines for restaurants and retail outlets who holding 'live fish and shellfish in aquaria - an initiative of the Animal Welfare Working Group of AAWS
This project will address one of the most common sources of public complaints (both real and perceived concerns) regarding the treatment of “live seafood’ held in aquaria in restaurants.
Many restaurant owners are not trained aquarists and this project will greatly assist in providing them with better understanding of the needs of the live seafood they are holding.
The project seeks greater consistency across the states and territories in approaches to animal welfare.
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Tactical Research Fund: Decision tree and rapid assessment methodology for new fisheries
Declines in the gross value of production (GVP) from commercial fishers in Western Australia and increased interest from the commercial sector in diversifying activities to adapt to seasonal variability in supply and demand has prompted the Western Australian Fishing Industry Council (WAFIC) to set the goal of introducing ten new fisheries by 2020. However, poor public perception of commercial fishing, low probability of establishing fisheries of considerable scale, and lack of efficient policy strategies hinders new development. To enhance the future of the industry, there is a very strong need to readdress current approaches to fisheries development, promote innovation and strengthen community ties. Western Australia has already taken the strategic policy decision to aim for independent third-party assessment (by the MSC) of all its fisheries, simplify its regulatory environment through expected outcomes from the MER project (Minimum Effective Regulation), and review and modernize its Fisheries Management Act. The proposed project adds further impetus to securing a future industry by initiating a research driven co-management approach to fishery development and diversification. By designing a conceptual pathway, compiling relevant biological, environmental and socioeconomic information, and applying these to test-case fisheries, the project will present a robust feasibility study into decision-tree, risk-based alternatives to creating and managing new fisheries.