Integrated approach to improving stock assessment of Black Jewfish
Review and quantify the cumulative effects of expanding industrial coastal developments and emerging offshore renewable energy on the fishing industry in WA
The fishing industry in WA and Offshore renewable sector has the opportunity to develop and set a framework for how the industries will work side-by-side to build long term collaborative relationship. Currently, the offshore renewable sector has clearly defined statutory basis, however no marine spatial planning has been provided, to date, and no statutory authority or priority policy that allows or considers the fishing industry. Exclusions zone around infrastructure ultimately claims authority over the water with fishers excluded. In Scotland, 10 years has passed since the establishment of the first offshore wind farm and the Scottish Fishermans Federation are still grappling with the impacts from this industry. In Scotland, first it was the oil and gas sector, then decommissioning and now offshore renewable, so there are real opportunities to learn from overseas and our own WA experiences to work towards developing a framework, to avoid ongoing conflict.
The fishing industry in WA is a defender of a healthy marine environment and is supportive of low carbon emissions, sustainable marine environments and aquatic resources, with the fishing industry also playing one of the most important roles for the community by providing food security. There is currently insufficient protection for the fishing industry with existing plans, legislation, tools and mechanisms bringing balance to some industries and not others. However, in Australia we have an opportunity before wind farms are placed in Australian waters to adequately understand the science of the impacts, by reviewing the literature and learning from other jurisdictions, to provide evidence-based decision-making outcomes for both sectors.
A framework is required that values and protects a legitimate, sustainable and long-established fishing industry which remains at the core of our coastal communities and contributes to our national food security. This new framework will work to provide a key role for the fishing industry in marine spatial planning, particularly in relation to offshore renewable sector and we can jointly understand the potential impacts, co-existence opportunities and avoid displacement to ensure the long-term economic viability of the fishing industry remains.
A full assessment of the spatial squeeze that restricts fishing throughout WA needs to be understood to assess cumulative impacts and avoid displacement of the fishing industry. There is a clear need to understand the potential effects associated with offshore renewable projects and assess how fishing industries can co-design or coexist. If displacement is unavoidable an established compensation process may need to be developed. This project will therefore work with State and Commonwealth Governments to establish important marine spatial planning principles for the fishing industry.
Indigenous fishing subprogram: mapping livelihood values of Indigenous customary fishing
The need for this project was identified at the National Forum (Cairns 2011) (see Principles 1,2,3,5,6,7,8,10 - FRDC 2010/401). While commercial and recreational fisher values are fairly well understood, Indigenous values remain elusive to the development of fishing management strategies and policies. Similarly, Indigenous engagement in contemporary fisheries remains limited. These gaps result from a paucity of documented information in a format accessible to fisheries managers, and a shortage of Indigenous leaders and practitioners seeking to engage in fisheries and fisheries management.
These challenges are recognised in national R&DE plans and by the national FRDC IRG in calls for research to facilitate greater Indigenous engagement in fisheries, as well as more effective inclusion of Indigenous livelihood values in fisheries planning. Livelihood values include social, cultural and economic components. Achieving the longer term national goal of a comprehensive assessment of Indigenous fishing effort and development of catch allocation models will require lead up investment in Indigenous capacity to engage, as well as in documenting Indigenous livelihood values in fishing.
Significant progress has been achieved in mapping Indigenous values and building Indigenous engagement in related areas of natural resource management - particularly in water planning and land and sea management. The Indigenous capacity and expertise from these endeavours are relevant to the challenge of improving engagement of Indigenous people and knowledge in contemporary fisheries. In short, this project brings together Indigenous and non-Indigenous expertise from successful Indigenous natural and cultural resource management endeavours to map Indigenous values of aquatic biological resources and build capacity for greater Indigenous participation in fisheries. Further changes to regulations regarding Indigenous access to fisheries have been foreshadowed in two of the jurisdictions during the timeframe of the study. As such the study may allow investigation of the impacts of these changes to Indigenous satisfaction with their level of engagement in fisheries management and fishing activity.
Final report
- the Far West Coast Aboriginal Corporation RNTBC (Far West Coast SA),
- the Crocodile Islands Rangers of the Milingimbi and Outstations Progress Resource Association (Northeast Arnhem Land, NT), and
- the NSW Aboriginal Fishing Rights Group (South Coast NSW)
The research team interviewed 169 Aboriginal people from these three regions between October 2015 and July 2017, collecting qualitative data on the perceived cultural, social, economic and health significance and benefits of customary fishing practices (activities related to the use of fish and aquatic invertebrates). Data was also collected on perceived barriers to customary fishing practices and the aspirations people held for marine resource use and management in their communities’ futures.
The results show that for many Aboriginal peoples, customary fishing practices are of immense value and multi-faceted importance; being able or unable to access customary fisheries can have profound repercussions for the cultural, social, economic, physical and mental health of individuals, families and communities. Recognising and facilitating the values and aspirations of Aboriginal peoples in the management and use of their sea countries has the potential to generate substantial positive flow-on effects for overall health, wealth and wellbeing.
Around the world Indigenous peoples see aquatic resource use as part of their identities and crucial to their political, cultural and economic self-determination. Many Aboriginal and Torres Strait Islander peoples continue to seek greater engagement in fisheries and fisheries management in order to meet their cultural and socio-economic needs and long term objectives.
Consistent with previous research, this project found that the Aboriginal people who were interviewed valued fishing and related practices greatly, and for a wide range of reasons. These varied both between and within regions, but general findings that were consistent across all three case study regions included:
- Fishing is governed by widely recognised cultural laws and norms.
- Fishing is one of the primary ways of living and practising culture, maintaining a connection with country and passing on cultural knowledge.
- Sharing catch is a strong norm; often a small number of regular fishers provide for many people.
- Sharing catch strengthens and maintains social ties within and between families and communities.
- Sharing catch creates a social safety net that supports vulnerable members of the community.
- Fishing is an important social and leisure activity.
- Subsistence fishing and the trade and barter of catch increase discretionary incomes by substituting purchased goods.
- Certain marine and coastal species are used medicinally.
- Fishing improves diets, through regular access to healthy foods which are otherwise unavailable or unaffordable.
- Fishing keeps people physically active.
- Fishing helps people to relax and deal with stress.
- Practising culture and providing for their families in this way gives people a sense of pride.
- Fishing is part of people’s individual and cultural identities, and thus their sense of self-worth.
The converse of these extensive benefits is that restrictions and barriers to customary fishing practices can have far-reaching negative consequences for the health, wealth and wellbeing of Aboriginal people and communities. The nature and scale of the barriers and restrictions nominated by interviewees varied considerably between regions, but many stemmed from fisheries management and environmental protection legislation, regulations and enforcement decisions. These included regulations not properly accommodating the unique aspects of Aboriginal ways of fishing (leading in some cases to their effective criminalisation), unfair targeting and harassment of Aboriginal fishers by enforcement officers, inadequate respect for and understanding of the rights of native title holders, and apparent long term declines in local fish stocks attributed to overfishing by commercial operators.
Across all case study regions there was significant interest in greater Aboriginal involvement in commercial fishing, aquaculture and other on-water industries. Jobs created by these industries were seen as highly desirable, because in addition to an income source they potentially entailed working out on sea country, using and passing on cultural knowledge and skills, and reduced the need for people to move off country. Most existing opportunities in commercial fishing and aquaculture were said to be in practice inaccessible to most Aboriginal people. Existing Aboriginal-owned commercial ventures were highly regarded partially because many were seen as directly incorporating local non-economic values. This was also the case for many of the aspirational commercial ventures which interviewees proposed.
Aboriginal people interviewed in all case study regions strongly desired greater involvement in the management of local seas and fisheries. This included at the decision making level, and through more Aboriginal fisheries enforcement officers and Indigenous land and sea management rangers, the latter potentially with enforcement powers.
Additional research by or with Indigenous communities, particularly freshwater and Torres Strait Islander, to collate more detailed local fishing values sets and to add to and verify the broad baseline set established here, should be a priority. This would in turn allow research to quantify the total catch and effort of Indigenous fisheries and the estimated monetary value of both economic and non-economic fishing values. Better appreciation of the total value of Indigenous fisheries would inform negotiations over recognition and support for Indigenous fishing values and aspirations in management.
Indigenous fishing subprogram: Business Nous - Indigenous business development opportunities and impediments in the fishing and seafood industry
Indigenous Fishing Subprogram: Ensuring that fishing and seafood industry focused RD&E delivers improved economic, environmental and social benefits to Australia’s Indigenous people – IRG and Indigenous Subprogram Support
There is still ongoing need for planning and implementation of targeted, effective RD&E activities that address Indigenous sector priorities. The FRDC assist addressing this by supporting and resourcing the IRG through projects, and an Indigenous RD&E SubProgram.
There has been remarkable progress since the inception of the IRG, but identified market failures still exist as most agencies, researchers and other stakeholders still have limited capacity to interact and engage with the Indigenous sector, and fully reap the opportunities and benefits.
The pool of Indigenous people who have the expertise and/or wish to be involved in the process is growing, but is still inadequate to address identified needs. This is a key focal area for the IRG for the future, including supporting a formalised capacity building program that improves understanding and knowledge of research, management, governance, and agency processes.
Opportunities exist to:
• Increase the pool of Indigenous people with expertise and desire to engage in RD&E and associated policy process
• Build two-way capacity by enhancing non-Indigenous stakeholders’ knowledge and capability
• Improve culturally appropriate knowledge/data for the Indigenous fishing sector to address Indigenous Australians, researchers and managers’ needs
• Transition research to policy
• Enhance Indigenous focussed projects at a jurisdictional level through improved connectivity between IRG and RAC/IPA
• Manage expectations that the IRG is a one-stop shop for all Indigenous issues related to the industry by developing processes to expand networks and engagement.
The IRG is different to other programs as it provides a service that covers a number of additional areas. An aim is to break the need of the FRDC and RACs in seeing the IRG as the sole conveyer of Indigenous input. In the interim this necessary service is subsidised by FRDC as we seek to develop an alternate mechanism.
Informing the structural reform of South Australia's Marine Scalefish Fishery
South Australia’s Marine Scalefish Fishery (MSF) is currently undergoing a strategic review with the principal aim of restructuring the fishery in order to ensure its long-term sustainability and economic viability. The heterogeneous mixture of participants, fishing devices, licence conditions and regulations associated with this fishery makes the tasks of administering and managing it extremely challenging. These complexities intertwined within a highly dynamic fleet that is capable of shifting fishing effort amongst species and regions often alters the emphasis of its overarching management. Industry and Government are working collaboratively to address the inherent complexities of the fishery through firstly developing a mechanism to rationalise the fleet, then reforming its overall structure, and ultimately refining its future management. In order to optimise this structural reform, it is necessary to disentangle and understand the fleet dynamics of this extremely complex fishery. This project aims to explore the implications of strategic management options (e.g. regionalisation, licensing, ITQ’s and ITE’s) on the future structure and viability of the MSF, from resource sustainability, economic and social perspectives.
Final report
This study was undertaken by the South Australia Research and Development Institute (SARDI) in collaboration with PIRSA Fisheries and Aquaculture, BDO EconSearch, the Marine Fishers Association (MFA), Fishwell Consulting and University of Canberra. This project guided the reform of South Australia’s commercial Marine Scalefish Fishery (MSF) by providing scientific advice and analyses to underpin its implementation. The MSF is a multi-sector, multi-gear and multi-species fishery, making any management reform a complex and difficult process. Both the sustainability of key stocks and commercial fishery’s economic performance have been deteriorating over a 20-year period; significantly influenced by fishery overcapitalisation. Simply put, there were too many fishers and not enough fish to support a vibrant and sustainable commercial fishery. This was addressed through the three ‘pillars’ of the reform: regionalisation, unitisation and rationalisation. These pillars were reflected in the reform with: 1) the creation of four new zones of management; 2) implementation of individual transferable quotas (ITQs) for appropriate ‘Tier 1’ stocks; and 3) rationalisation of the commercial MSF fleet by removing one third of licences through a voluntary licence surrender program (VLSP). These pillars were supported by research on the biological, economic and social carrying capacity of the fishery. The reform was implemented on 1 July 2021 resulting in a fishery that has regional management with appropriate output controls and a reduced fleet size.