Development of a national approach to seafood quality (SeaQual Australia)
Final report
SeaQual was established in December 1995, as a joint initiative of the Fisheries Research and Development Corporation, the Commonwealth Department of Primary Industries and Energy (now Agriculture, Fisheries and Forestry - Australia) and the Australian Seafood Industry Council. SeaQual was located in the Canberra offices of the Australian Seafood Industry Council and overall strategic direction of the project was provided by a broad industry based Steering Committee.
This report outlines the results achieved in the pursuit of SeaOual's objectives. Originally a four year program, SeaQual achieved all its milestones, and more, in only three years with significantly less resources than anticipated.
Several recommendations are made in relation to the operation of industry-government partnerships and the need to establish and maintain levels of resources and commitment. The need to establish and promote industry development activities early and to clarify expectations of all stakeholders are also identified as critical success factors for future projects.
SeaQual was established with an information and capacity building role, and released several innovative products and publications over the three years.
Project products
Retrospective assessment of ITQs to inform research needs and to improve their future design and performance
As stated in the call for proposals, the implementation of individual tradeable quota (ITQ) in Australian fisheries has brought about many demonstrable gains (e.g. increased capacity utilisation and profit). At the same time, there have been some social, economic and environmental consequences associated with the move to tradeable fishing rights that, even if predictable, may have been unintended. For example, ITQ markets have not always operated as envisaged; thin markets (few buyers and sellers), high transactions costs and the de-coupling of the ownership of quota from fishing practice may have undermined the performance of some ITQ systems. Ownership of quota by processors, exporters and others further along the value chain has also distorted the price incentives in some fisheries. In others, non-fisher quota ownership has resulted in a lease-dependent component of the fishery that are not capturing the benefits generated by the ITQ system. Changing quota ownership characteristics also have an impact on the configuration of industry representatives on co-management committees. It is not yet clear what the longer term impact of this is on stewardship and the decision making process and ultimately on management outcomes. As the extension of ITQs in Australia to a greater number of commercial fisheries, and potentially to support inter-sectoral allocations, is contemplated there is a need to learn from experience of ITQs both in Australia and internationally
ITQs globally have come under intense scrutiny in the fisheries management and economics literature. Synthesising and critically analysing learnings from these studies, as well as relevant knowledge from individuals/groups/organisations involved in the administration of, or affected by, existing ITQ systems will help identify key issues and, where possible, reforms that through adaptive management can improve the performance of existing markets and inform the design of new tradable rights markets.
Final report
The use of transferable fishing rights has increased internationally over recent decades with most industrialised countries now using some form of individual transferable catch quota (ITQ) or individual transferable effort (ITE) system for at least some of their fisheries. Australia also has considerable experience in the use of ITQs and ITEs, with examples of ITQ or ITE management in each State and also Commonwealth fisheries.
Oil and Gas: National coordination - seismic and other issues
The commercial fishing industry is under intense pressure from the O&G sector (exploration, seismic surveys, deployment of gear and now decommissioning of gear), jeopardising commercial fishing access rights, commercial fishing sustainability and potential commercial fishing resource impacts (such as Bass Strait scallop mortality) and overarching impacts on the broader marine environment (such as plankton mortality) for many fisheries.
The O&G industry also seeks relevant science to use within their environment plan submissions to offer the best ALARP practices regarding their interactions with the commercial fishing sector and the commercial fishing resource.
There is an urgent need for a national role coordinating O&G / commercial fishing specific R&D needs, seeking and updating available material and identifying gaps in the science with all materials to be available via a publicly accessible portal. Benefits for commercial fishers, O&G, eNGOs, students and the broader community.
Primary focus seismic activities plus other relevant science.
Current O&G / commercial fishing industry engagement is done in isolation with an inconsistent use of research (relevant or otherwise), inconsistent process, lack of uniformity of overarching messaging, lack of access to current and appropriate research and the duplication of work across all states.
Final report
Commercial fishing industry throughout Australia is under continued pressure on its operation due to activities relating to the oil and gas sector such as seismic surveys, drilling, construction of sub-sea infrastructure and commissioning. Generally, the commercial fishing sector throughout Australia is the largest and only group of relevant stakeholders affected. The activities are firmly regulated by National Offshore Petroleum Safety and Environmental Management Authority (NOPSEMA) in Commonwealth waters. This project examines and develops a national approach for the commercial fishing industry and offshore oil and gas sector to ensure both parties can work together. The principles present in this project will inform governance framework on how to manage consultation and expectations between commercial fishers and the oil and gas sector. It was found that impacts varied according to species and habitat type, key gaps in the results were effects of noise disturbance to aquatic resources, impacts to larval stages of commercially important species, and the difference between lab experiment compared to natural operating environment. Recommendations from this project are to undertake an Ecological Risk Assessment, explore the benefits in developing a National interactive digital platform, regulate sharing of data between titleholders, engagement, compensation and/or financial adjustment practices need to be considered and the concept and outcomes of this project is applied to oil and gas decommissioning and renewable energy activities.
Human wellbeing indicators for the FAO EAF- Nansen project
Currently there are fragmented standards and no agreement of the indicies that should be used for the social assessment of sustainable marine aquatic resources. This work, while ultimately for the Food and Agriculture Office of the UN, will provide a vehicle to feed previous Australian work into an international forum, to be assessed and potentially used as the international standard of approach to social assessments of ESD.
Final report
Design of a fishery independent longline survey for chondrichthyans in Northern Australia
Catch Per Unit Effort (CPUE) from commercial logbooks is often used as an index of abundance in stock assessments. However, the use of commercial CPUE as an indicator of relative abundance can be problematic as the underlying assumption that commercial catch rates change linearly with abundance is often compromised. Although some factors that are reported in logbooks can be used to standardise CPUE, there are other sources of variation including:
• Modified fishing practices to target or avoid species to suit quota availability, meet market demands, or to comply with management arrangements.
• Differences in selectivity of fishing gear and use of bycatch-reduction devices.
• The combined impacts of multiple management restrictions on a fishery.
For example, gillnet operations in what was once the Northern Territory’s Shark Fishery now almost exclusively target Grey Mackerel. This change in practice has resulted in an index that is losing its relevance in assessing shark species.
Over 140 elasmobranchs are listed on CITES Appendix II, with the likely-hood that more species will be added in the future. Of the 11,082t of shark landed by the fishery since 2000, CITES listed Hammerheads comprise 17.25% of the shark catch. Other sharks caught by the fishery that were recently added to CITES Appendix II at the Nineteenth meeting of the Conference of the Parties Panama City (Panama), 14 – 25 November 2022 include: Grey Reef Shark, Dusky Whaler, Sandbar Shark, Lemon Shark, Whitecheek shark and all other members of the family Carcharhinidae (which include the Blacktip Shark complex that is the main shark species caught by the fishery - 4688t or 42% since 2000). These species will require a positive Non-Detriment Finding (NDF) and CITES export permit in order to be exported following the 12-month delay in implementation (i.e., December 2023). The fishery also catches Threatened, Endangered and Protected Elasmobranchs, some of which are also CITES listed.
Gillnet and longline effort has decreased since 2000 and there is significant latent effort in the fishery. There is a desire to utilise this latent effort, however, the CITES listing of the majority of sharks species caught in the fishery will increase scrutiny from State, Commonwealth and International environmental agencies, as well as NGOs. This heightened scrutiny will provide greater impetus to demonstrate that shark stocks are at sustainable levels and that fishing is being undertaken sustainably.
There is a strong need for independent survey methods to gain a better understanding of the abundance patterns of shark species over time that can contribute to the development of appropriate management of these species that meets environmental, fisheries, and conservation needs.
Surveying Northern Australia using longlining methods would provide a fishery independent estimate of relative abundance for sharks that would improve economic security and public confidence in sustainability. However, to make an informed decision of the feasibility of a survey a full understanding of the scope of work and cost required is needed. There is a need to look at existing long line surveys undertaken worldwide (e.g. in the USA and Bahamas), to understanding the methods undertaken and the time period required to develop accurate abundance estimates.
Environmental risk and impact assessment of the pearling industry
Based on the Government ESD and Oceans Policies the pearling industry is currently facing several significant concerns. These include the need to:
- demonstrate objectively that pearling activities have minimal, if any, adverse ecological impact on the marine environment.
- identify challenges and threats to the fishery's continued variability from an ESD perspective
- demonstrate objectively that the fishery is environmentally sustainable
- obtain broad ecological information to assist the industry in identifying what environmental characteristics are key elements of successful pearl farming; and
- identify what areas of research are required to substantiate the pearling industry's claim of ongoing ESD.
Final report
Developing a community communication plan and communication resources for the seafood industry
There is a government and community perception that women and regional communities are disadvantaged and require special consideration in regards to developing skills and securing a positive and productive future.
Much of the Australian seafood industry is based in regional Australia where the challenges to the industry include changing fisheries management regimes, physical and climatic environments, financial restraints, and increasing social and political impacts.
The women supporting the seafood industry need more information regarding how to-
organise local WIN activities, look for funding for activities, organise a school and communication education program, tame the media, do displays- for example in shopping centres or at community festivals and fairs, organise seafood festivals such as the Yamba and Geelong Seafood Festivals, lobby for support from communities and community leaders and make better use of communication technologies such as the internet and email.
Uniting women in regional Australia with common purpose and the necessary confidence, and communication and leadership skills is essential in maximising their input within the seafood industry and the local community.
The community needs better information about the seafood industry and seafood for consumption in regards to types of fishing activities, fisheries management, industry environmental and sustainability initiatives, research, careers and training, Indigenous fishing activities, aquaculture, seafood for good health, seafood handling and cooking with seafood.
Changing public perceptions about the seafood industry requires a broad and organised strategy aimed at all levels of the community.
This project provides a coordinated communication strategy for the under-utilised energies of women in the seafood industry, and becomes a core resource for WIN’s activities. The prosperity and longevity of WINSC relies on a high level of motivation among the women to give freely of their time and energies as well as financial and emotional support from the industry. To achieve representation and recognition they need to establish themselves as a credible and productive grassroots movement in the communities of regional Australia.
This project provides support for the skills development of women in the seafood industry to achieve the WINSC vision statement: 'The National Women’s Industry Network is a network of women in the fishing and seafood industry. Network members influence decision making to ensure a profitable, dynamic, secure, innovative and sustainable industry. An industry which is proactive and responsive to the needs of industry and the community (WINSC Annual Report 1999-2000)'.
Final report
The project provides strategies for all levels of the industry to effectively communicate with all levels of the community, including community leaders.
The communication resources provide practical, user-friendly information for individuals and groups to be active in consumer and community education about the seafood industry. It encourages community involvement in all aspects of the seafood industry. These communication tools have enduring qualities and can be used and referred to in many current and future situations.
The whole-of-industry approach extended the ownership and commitment to the processes of community communication. ASIC and WINSC along with SSA, OceanWatch, state industry organisations and various sections of government have assisted in the broad implementation of the Guide and Resources.
Through the collaborative processes in the development, distribution and implementation of the Guide, Resources and workshops, many individuals, groups and organisations have had the opportunity to work together on a proactive project.
Key words: communication, community communication, communication strategies
Assessing Australia's future resource requirements to the Year 2020 and beyond: strategic options for fisheries
As shown in Figures 1 and 2 world human population growth is increasing at the greatest rate in history, but fisheries production has stagnated or declined since 1990. The oceans can produce only marginally more than they do at present. Demand for fisheries resources continues to increase, perhaps even faster than population growth as the culinary and health advantages of seafoods are being increasingly realised.
Australia has no specific policies to provide increased seafood resources for future generations. We already import more than half the seafood we consume. The lack of long-term policy is directly linked to the lack of understanding of the factors which truly influence supply and demand. No Australian fisheries management agency plans beyond resolution of current resource use problems. Recent crises resulting from the realisation of the impacts of greenhouse gas emissions and deforestation highlight the urgency for Australia to look much further ahead for all natural resource use and management strategies.
Modern economies depend on the concept of growth as a key element of their success. Notwithstanding the emergence of the service industries as an increasing proportion of this economic growth, the Australian economy still depends on an increasing primary production base to supply both domestic and export demand. While the proportion that fisheries might supply to Australia’s export demand might be stable as a percentage, the physical output in terms of tonnes per year grew considerably over the last 50 years. Most significantly, production has levelled, or even declined, in recent years. This physical aspect of growth often goes unnoticed in discussions around environmental sustainability, yet it is of critical importance to all our assumptions about the future of this country and therefore of our management of our fisheries resource base.
Fish, as food, and fisheries, both commercial and recreational, are tremendously important, fundamental components of most Australian's perception of what the future should hold. For the many tens of thousands employed directly or indirectly in fish related industries the social implications of long-term sustainability use of fish resources is even more pressing. Yet our resources and the ecosystems which underpin them are streteched or even over-taxed. It is extremely important for all associated with fish resource use and conservation that the status of individual fish resources be increasingly used by Governments as indicators of ecosystems health and therefore play an expanding role in Australia's total resource use projections. A current FRDC commissioned review of threats to, and potential solutions for, Australia's freshwater fisheries has identified increased use of fish as indicators of river health as the highest priority policy/management initiative.
While the recognition that many of our natural resources are linked across many aspects of a modern economy is hardly a new insight the CSIRO modelling initiative has attempted to bring quantitative data together to allow these linkages to be explored. The purpose of this work is to explore and choose sets of management and policy options which might contribute to more sustainable modes of operation for the Australian physical system. Many contemporary expressions such as “the weightless economy”, “the factor 4 economy” and “the zero waste economy” are meant to describe these new modes of more sustainable (or less physically impacting) operation.
This research proposal aims to describe from a national viewpoint the operation of the fisheries industries (commercial and recreational) in relation to their own long-term potential, and in relation to the other resource industries which might depend on, or impact on the fisheries resource. The particular modelling framework is designed to deal with long-term issues on time scale of 25, 50 or even 100 years. It attempts to define the quantities of fish demanded by both domestic and export requirements, as well as drawing on our current knowledge of the quantities that might be supplied from our fish stocks.
Currently the ASFF model is being used in long-term studies of Australia’s population requirements (Department of Immigration and Multicultural Affairs), its long-term energy position (CSIRO internally funded) and its long-term land and water position (LWRRDC funded for 3 years).
As FRDC’s portfolio of research investment is being revamped to include the multiple demands being made by societal expectation, the commercial industry and the recreational fishery, now is the time for a considered investment in a long-term viewpoint. Current shortfalls in total fishery production dictate a certain urgency in defining some long-term options which provide a strategic framework where more focussed and local investments can contribute their part in unison, rather than in isolation.