Rock Lobster Fishery Management Plan · Fishery. This is the first management plan for the fishery...
Transcript of Rock Lobster Fishery Management Plan · Fishery. This is the first management plan for the fishery...
DEPARTMENT OF
PRIMARY INDUSTRIES
Rock LobsterFishery
Fisheries VictoriaManagement Report Series
No. 1
June 2003
Management Plan
Rock Lobster Fishery Management Plan
Rock Lobster FisheryManagement Plan
June 2003
Rock Lobster Fishery Management Plan
ii
© The State of Victoria, Department of PrimaryIndustries, 2003
This publication is copyright. No part maybe reproduced by any process except inaccordance with the provisions of the CopyrightAct 1968. Reproduction and the making availableof this material for personal, in-house ornon-commercial purposes is authorised, oncondition that:• the copyright owner is acknowledged
• no official connection is claimed
• the material is made available without chargeor at cost
• the material is not subject to inaccurate,misleading or derogatory treatment.
Requests for permission to reproduce orcommunicate this material in any way notpermitted by this licence (or by the fair dealingprovisions of the Copyright Act 1968) should bedirected to the Copyright Oficer, FisheriesVictoria, P.O. Box 500, East Melbourne,Victoria, 3002
ISSN 1448-1693ISBN 1 74106 51 3
Preferred way to cite this publication:Department of Primary Industries (2003). Rocklobster fishery management plan, 2003. Compiledby the Rock Lobster and Giant Crab FisheryManagement Plan Steering Committee. FisheriesVictoria Management Report Series, No.1.
Published by the Department of PrimaryIndustries
Fisheries VictoriaPO Box 500East Melbourne Victoria 3002
Copies are also available from the website:www.dpi.vic.gov.au/fishing
Disclaimer: This publication may be of assistanceto you, but the State of Victoria and itsemployees do not guarantee that the publicationis without flaw of any kind or is whollyappropriate for your particular purposes andtherefore disclaims all liability for any error, lossor other consequence which may arise from yourelying on any information in this publication.
Fishing regulations are a summary of the law atthe time of publication and this brochure cannotbe used in court. Fishing laws change from timeto time. It is your responsibility to ensure thatyou are acting within the law. If you are in doubtcontact the Customer Service Centre (Telephone136 186 or www.dpi.vic.gov.au/fishing).
Printed on recycled paper
Rock Lobster Fishery Management Plan
iii
Foreword
I am pleased to be able to release thisManagement Plan for the Victorian Rock LobsterFishery. This is the first management plan for thefishery under the Fisheries Act 1995 and itformalises the co-management planning processwithin a framework of Ecologically SustainableDevelopment. This plan is part of the BracksGovernment’s vision for Victoria as a Statewhere protecting the environment and utilisingour resources sustainably is built into everythingthat we do.
Consistent with the Bracks Government’scommitment to effective communityengagement, the development of this Plan hasbeen achieved through extensive consultationwith key stakeholder groups. The planningprocess has been overseen by the Fisheries Co-Management Council, and effective stakeholderinput was achieved through a SteeringCommittee with representatives from majorgroups who were all invited to participate. Adraft Plan was released for public comment andsubmissions from the public have been takeninto consideration in the preparation of the finalPlan.
The rock lobster fishery is the second mostvaluable commercial fishery in Victoria and it isthe most significant in terms of capitalinvestment and employment. There are morefishing boats, crew and processors associatedwith the rock lobster fishery than any other Statefishery. Currently, the total annual catch islimited to 510 tonnes and landings are valued at$21 million. Post-harvest processing and liveexportation to markets in Asia greatly enhancethe value of the landings.
The fishery has a long history and makes animportant contribution to the economy andemployment of the rural coastal communities.The number of vessels operating in the fisheryhas been controlled under a system of limitedentry since 1968. However, during the lastdecade, the annual catch has increased withhigher levels of fishing effort. A number ofoutput controls were introduced in 2001, whichchanged the emphasis of fisheries managementfrom restrictions on fishing effort to a limit on
the total allowable catch. Fishery management isnow based on an integrated approach of inputand output controls including size limits, areaand seasonal closures, fishing gear specificationsand individual transferable quotas.
The social and economic values associated withdiving for rock lobsters is recognised by therecreational fishing community and contributesto the tourist industry along the Victorian coast.Although the recreational catch of rock lobstersis only estimated to be about 10-20 tonnes, manypeople spend a large amount of their leisure timesearching for rock lobsters and it is an importantaspect of recreational diving.
The purpose of this Management Plan is toensure that this fishery is managed on anecologically sustainable basis in the future. It setsout the strategies and actions for managing thefishery over the next 5 years with emphasis onmanaging the commercial and recreational catchat levels that will allow stocks to re-build,prevent overfishing, and reduce the risks oflower stock abundance in the future. It shouldnot, however, be regarded as inflexible as thePlan specifies an open process for annuallyreviewing the total annual catch limit so thatmanagement arrangements can evolve inresponse to new information, technologies and/or changing community attitudes.
To ensure that the views of the community aretaken into account in the co-managementprocess, the Bracks Government will continue toinvite the major stakeholders and the public toparticipate in the implementation andrefinement of this plan in the future. I take thisopportunity to congratulate all those involved inthe development of the Rock Lobster FisheryManagement Plan.
Bob Cameron MPMinister for Agriculture
Rock Lobster Fishery Management Plan
iv
Rock Lobster Fishery Management Plan
v
Contents
Executive Summary 1
Introduction 2
Biology of the Southern Rock Lobster 3
Commercial Fishery 3
Recreational Fishery 4
Aquaculture Industry 4
Status of the Stocks 4
Current Management Arrangements 5
Definition of a Rock Lobster 5
Size Limit 5
Closed Seasons 5
Jurisdiction 5
Management Zones 5
Commercial Fishery Management 5
Fishery access licence 5
Apollo Bay Paddock 6
Eastern Zone corridor 6
Commercial fishing gear 6
Individual transferable quota 6
Quota management system 6
Coff registers 6
Processing and marketing 6
Compliance and law enforcement 6
Recreational Fishery Management 7
Recreational fishing licence 7
Recreational fishing gear 7
Catch and possession limits 7
Co-management Arrangements 7
Environmental Issues 7
Rock lobster habitats 7
Rock Lobster Fishery Management Plan
vi
Marine protected areas in Victoria 7
Marine plan for South Eastern Australia 8
Objectives of the Management Plan 9
Ecologically Sustainable Development 9
Economic Efficiency 9
Separate Management in Each Zone 9
TAC Forum and Co-management 9
Assessing the Status of the Resource 9
Improved Management of Recreational Fisheries 9
Cultural Use by Indigenous Australians 9
Aquaculture 9
Fees and Levies 10
Compliance and Communication 10
Rock Lobster Fishery Management Plan 11
Duration of the Plan 11
Goals, Objectives and Strategies 11
Goal 1. Sustainability of the rock lobster resource 11
Goal 2. Resource access and utilisation 12
Goal 3. Effective fishery management 13
Sustainability of the Rock Lobster Resource 15
Indicators of Stock Status 15
Spawning and available biomass indicators 15
Observed indicators 15
Reference Points and Performance Measures 15
Triggers and Management Actions 19
Stock assessment and model projections 19
Co-management Process for Reviewing Management Arrangements 19
Process for setting the total allowable catch, size limits and closed season 20
Commercial Fishery Management 21
Fishing Rights, Access, Quota Ownership and Entitlements 21
Licensing Arrangements 21
Quota Holdings 22
Pot Entitlements 22
Minimum and maximum pot entitlements on a licence 22
Rock Lobster Fishery Management Plan
vii
National Competition Policy 22
Pot limits for the fishery 22
Changes to restrictions on quota holdings and pots 23
Relationship between quota holdings and pot entitlements 23
Allocation of additional quota above threshold levels 23
Apollo Bay Paddock 23
Eastern Zone Corridor 24
Far Eastern Zone Fishery 24
Commercial Fishery Compliance and Communication 24
Compliance Strategy 24
Communication Strategy 24
Code of Practice for Commercial Fishing 24
Arrangements for interstate landings 24
Fees and Levies 25
Recreational Fishery Management 25
Management of the Recreational Catch 25
Use of hookah and other recreational fishing methods 25
Legal minimum length, bag limits and marking 25
Code of Practice for Recreational Fishing 25
Recreational Fishery Compliance and Communication 25
Traditional Access and Use by the Indigenous Community 26
Development of Aquaculture 27
Opportunities for Rock Lobster Aquaculture 27
Rock Lobster Aquaculture Strategy 27
Ecosystem Interactions 28
Ecological Impact of Rock Lobster Fishing 28
Discarding of undersized, damaged, soft shell and berried rock lobsters 28
By-catch species 28
Species landed as by-product or used as bait 28
Biodiversity conservation 28
Protection of wildlife 29
Identification of Critical Habitats for Rock Lobsters 29
Reduction of Human Impacts on Rock Lobster Habitats 29
Other ecological issues 29
Responsibility for environmental assessment and management 30
Rock Lobster Fishery Management Plan
viii
Research and Development 31
Research Planning and Priorities 31
Research Funding 32
Management Plan Implementation 33
Costs of Implementation 33
Review of the Management Plan 33
Appendix 1: Ministerial Guidelines 42
Appendix 2: Fishery Strengths, Weakness, Opportunities and Threats 43
Appendix 3: Acronyms 44
Appendix 4: Definition of Terms 45
Appendix 5: Review of Interstate and International Aquaculture Policies 47
Appendix 6: Research Priorities for the Victorian Rock Lobster Resource 48
Appendix 7: References 50
Appendix 8: Submissions received during the period of public consultation 51
Appendix 9: Steering Committee Members and Affiliations 52
Rock Lobster Fishery Management Plan
Executive Summary
Rock lobster is the second most valuablecommercial fishery in Victoria and is importantto the economies of coastal communities. TheRock Lobster Fishery Management Plan (RLFMP)specifies the policies and strategies for managingthe rock lobster fishery in Victoria for the nextfive years.
The RLFMP has been prepared under therequirements of the Fisheries Act 1995 and theMinisterial Guidelines published in theGovernment Gazette. The status of the stock andthe existing management arrangements of boththe commercial and recreational fisheries havebeen reviewed in consultation with majorstakeholders. The RLFMP has been developedwith consideration of Victorian andCommonwealth Government policies onecologically sustainable management of fisheries,by-catch, native title, and national competition.
The RLFMP establishes arrangements to managethe commercial and recreational catch at levelsthat prevents overfishing, allows stocks torebuild, and reduces the risk of lower stockabundance in the future. Specifically the RLFMPintroduces:• 20% of the unfished biomass as the biological
“bottom line” based on internationalstandards to prevent over-fishing of rocklobster stocks.
• 40% of the unfished biomass as the targetlevel for re-building the stocks.
• An open process in which the total allowablecatch (TAC) is reviewed annually.
• A total allowable catch for the recreationalsector (TARC).
The RLFMP formalises fishery managementwithin a framework of ecologically sustainabledevelopment and co-management with allrelevant stakeholders. Key aspects are:• Retention of the existing fisheries
management zones.
• Retention of the cap on the total number ofpots to meet sustainability and ecologicalconcerns.
• Retention of independently tradeable quotaunits and pots within each zone that aresubject to market forces within the industry.
• Removal of restrictions that apply to theApollo Bay Paddock 50-pot zone byNovember 2007.
• An annual meeting between licence holders,managers and fisheries officers to improvemanagement arrangements.
• Development of communication andcompliance strategies.
• Establishment of mechanisms to providebetter estimates of the recreational catch.
• Provision of opportunities for indigenouscommunities to access the resource fortraditional purposes.
• Monitoring of global rock lobster aquaculturedevelopments to assess opportunities forVictoria.
• Establishment of research priorities tounderpin efficient and effective managementof the resource.
There is a schedule and budget forimplementation of this RLFMP. Annual progressreports and review points will allow fisherymanagement strategies to be adapted to futurecircumstances and ensure that sustainability andinter-generational equity of this marine resourceis achieved.
1
Rock Lobster Fishery Management Plan
Introduction
The purpose of the Rock Lobster FisheryManagement Plan (RLFMP) is to specify thepolicies and strategies for managing the rocklobster fishery in consultation with industry,recreational, indigenous and environmentalorganisations. The RLFMP formalises fisherymanagement for the next 5 years within aframework of ecologically sustainabledevelopment (ESD).
The recognised peak bodies nominated in theFisheries Act 1995 were invited to join the steeringcommittee and to make submissions. All werekept fully informed of the planning process andwritten submissions were taken intoconsideration after a period of public consultation.
The main aims of the RLFMP are to manage thecommercial and recreational catch at levels thatwill allow the stock to re-build, prevent
overfishing and reduce the risk of lowerabundance in the future. This will provide amore secure basis for this highly valued seafoodindustry that contributes to the Victorian economyand employment in coastal communities.
The RLFMP has three goals:• Sustainability of the rock lobster resource.
• Resource access and utilisation.
• Effective fishery management.
The guidelines for the development of theRLFMP were published in the GovernmentGazette and are shown in Appendix 1. Ananalysis of the fishery’s strengths, weaknesses,opportunities and threats (SWOT) used in thedevelopment of the RLFMP is provided inAppendix 2.
Figure 1: Rock Lobster Management Zones and the locations of the main ports of landing
2
Rock Lobster Fishery Management Plan
the west (90mm CL), but at the same age. Thegrowth rate of both sexes increases along thecoast from west to east.
Adult rock lobsters are carnivorous and feedmostly at night on a variety of bottom dwellinginvertebrates such as molluscs, crustaceans andechinoderms. Major predators include octopusand various large fish and sharks.
Commercial FisheryThe rock lobster fishery is Victoria’s second mostvaluable commercial fishery. Before theintroduction of quota, the commercial sectorcaught 584 tonnes in 2000/01, valued at $21.3million. During the last decade, catches haveincreased from 386 to 584 tonnes with increasedfishing effort. Over the same period, thecommercial value of the fishery has more thandoubled. Post-harvest processing, marketing andlive exportation have considerably enhanced thevalue of the fishery. More than half the catch isexported alive to international markets, mostly inAsia. The remainder is sold on interstate anddomestic markets.
Rock lobsters have been harvested undermanagement for more than 100 years. Thenumber of vessels operating in the fishery wascapped under a system of limited entry in 1968.During 2001, management of the commercialfishery moved to output controls, changing theemphasis from restricting fishing effort tolimiting the catch. The commercial fishery isnow primarily managed through a limitednumber of commercial access licences allocatedbetween two separate zones, a total allowablecommercial catch (TACC) divided intoindividual transferable quota units (ITQs) and aquota management system (QMS).
Other management measures include legalminimum lengths (LML), closed seasons,restricted pot numbers and fishing gearregulations that define the size of rock lobsterpots and escape gaps. Following the introductionof quota management, the annual TAC in 2001/02 was limited to 510 tonnes (see Table 1). Thecommercial fleet in 2001/02 consisted of 139 rocklobster access licence holders operating mainlyfrom twelve coastal ports. The most importantports are shown in Figure 1.
Lobster fishers also catch other species such asoctopus, leather jackets and wrasse. In 2001/2002,51 tonnes of these species were recorded onfishing returns as by-product.
To assist the reader, a list of acronyms andabbreviations that are used throughout the text isprovided in Appendix 3 and terms are defined inAppendix 4. A review of the internationalscientific literature on rock lobster aquaculture issummarised in Appendix 5. Research prioritiesand references are listed in Appendix 6 and 7.Submissions received during the publicconsultation period are acknowledged inAppendix 8 and the membership of the steeringcommittee is given in Appendix 9.
Biology of the Southern RockLobsterSouthern rock lobsters (Jasus edwardsii) are foundon coastal reefs to depths of 200m and aredistributed from the south-west coast of WesternAustralia to the south coast of New South Wales,including Tasmania. They are also found in thecoastal waters of New Zealand.
In Victoria, the abundance of rock lobstersdecreases from west to east reflecting adecreasing area of rocky reef habitat. Thedistribution of southern rock lobsters are similarto giant crabs (Pseudocarcinus gigas), which arealso taken by the fishery. Rock lobsters areabundant from the shoreline to depths up to200m, whereas giant crabs are most abundant onsoft sediments in deeper water between 150 and350m.
The life cycle of the rock lobster is extremelycomplex. Fertilised eggs are carried under thetail of the female for approximately three monthsbefore being released, typically betweenSeptember and November. Once released, rocklobster larvae (called phyllosoma) undergo 11developmental stages over a period of 1-2 yearswhile being carried on ocean currents. The finalstage of the lobsters’ larval development is a tiny25mm long puerulus. At this point, the puerulussettle on reefs generally at depths of less than40m where they grow into juvenile lobsters.
Rock lobsters grow by moulting their carapace.The frequency of the moulting cycle declineswith age from five moults a year for juveniles toonce a year for large adults. Males grow fasterand larger than females reaching 160 mm incarapace length (CL) after 10 years. Femalesgenerally reach 120mm CL in the same period.Female rock lobsters generally mature at a largersize in the east (112mm CL) compared to those in
3
Rock Lobster Fishery Management Plan
4
Table 1: Quota units, TAC and number of accesslicence holders and pots for each zone in 2001/02
Zone No of Quota TAC No ofRLFAL Units (tonnes) Pots
West 85 4000 450 5162
East 54 1000 60 2081
Total 139 5000 510 7243
Recreational FisheryThe actual recreational catch of rock lobsters isunknown but is estimated to be about 10 to 20tonnes a year. The catch is mostly taken inshallow water of less than 20m in depth and isbased on the capture of rock lobsters by handwhile diving and to a lesser extent by the use ofhoop nets. Divers operate from shore or boat,mostly using SCUBA, but hookah andsnorkelling equipment is also used. Hookahdiving is common in the Eastern Zone betweenPort Phillip Bay and the NSW border. Hoopnetting is more common off western Victoria.Management arrangements for the recreationalfishery include recreational fishing licences(RFL), fishing gear restrictions, a daily bag limitof two rock lobsters per day, a total possessionlimit of four rock lobsters per person and thesame closed seasons and LMLs as thecommercial fishery.
Aquaculture IndustryIn 1998, the Fisheries Research and DevelopmentCorporation (FRDC) established the RockLobster Enhancement and Aquaculture Sub-Program (RLEAS) to coordinate rock lobsteraquaculture research in Australia. There iscurrently no commercial rock lobsteraquaculture in Victoria.
Infrastructure supporting mussel and abaloneproduction has developed in several locationswith a cultivation area of 260 hectares in 2000/01.There were 39 licence holders and 136 employeesinvolved in both hatchery and grow-out ofmussel and abalone in 2000/01. Those engaged inaquaculture require a specific licence.
Status of the StocksRock lobsters in the Eastern Zone are moreheavily exploited than in the Western Zone.Catch rates declined continuously from the 1950suntil the early 1990s in the Western Zone anduntil the mid-1990s in the Eastern Zone.Subsequent catch rates have been relativelystable in the Western Zone and have increasedsteadily in the Eastern Zone.
Stock assessments 1 are based on a sophisticatedlength-structured model 2 that is fitted to data oncatches in weight and number, catch rates andthe sizes of lobsters in the catch. It includesbiological information such as growth,reproductive characteristics and mortalities. Themodel enables projections of future stockbiomass and allows the impacts of future catcheson the resource to be assessed. There isconfidence in these projections because themodel describes the fishery well. The modellingshows that the biomass above the LML (theavailable biomass) in 2002 is 25% and 15% of1951 levels in the Western and Eastern Zones,respectively.
The assessment conducted in 2002 incorporatesthe impacts of marine protected areas (MPAs) inVictoria. The stock, referred to as the availablebiomass, will re-build at the current TACs.Spawning biomass in the Western Zone isestimated at over 50% of the level in 1951, but itis much lower in the Eastern Zone at 17%.However, the spawning biomass in the EasternZone will increase at the current TAC.
1 Hobday, D.K. and Smith, D. (2003)2 Hobday, D.K. and Punt, A.E. (2001).
Rock Lobster Fishery Management Plan
Definition of a Rock LobsterIn the Fisheries Act 1995, rock lobster is defined asan animal of the genus Jasus. The majority ofrock lobster caught in Victoria is the southernrock lobster, Jasus edwardsii. However, smallnumbers of eastern rock lobster, Jasus verreauxiare caught in eastern Victoria, particularly to theeast of Cape Conran. The same managementarrangements apply to both species in Victoria.
Size LimitThe size limit of rock lobsters is defined by thecarapace length (CL) and measured from thefront edge of the groove between the largeantennae to the nearest part of the rear edge ofthe carapace. The LML is 110mm CL for malesand 105mm CL for females.
Closed SeasonsThe closed season is a period during which it isprohibited to take or attempt to take or topossess rock lobster in, on or adjacent to Victorianwaters. There are several reasons for the closedseason, but primarily it is to protect femalesduring their spawning season. The closed seasonfor females is between 1 June to 15 November.
The closed season for male rock lobsters isbetween 1 September to 15 November. Thisprovides protection during the male moultingperiod when growth occurs and when manyhave soft shells.
The take or possession of soft-shelled rocklobster or female rock lobster in berry (with eggs)and the removal of the eggs, spawn, setae orfibres from females is prohibited in Victoria.
JurisdictionThe Victorian Government has jurisdictionover the commercial rock lobster fishery inCommonwealth waters adjacent to Victoriaunder an Offshore Constitutional SettlementArrangement (OCS) with the CommonwealthGovernment. Other States have similar OCSarrangements.
Rock lobster stocks are managed separately byeach state but co-operative managementarrangements have been established to ensurethat the stocks in each jurisdiction are fished ona sustainable basis.
There are regular meetings for industry, researchand management from Victoria, Tasmania andSouth Australia including the southern Australiafisheries managers workshops and the marineand coastal committee meetings of theMinisterial Council on natural resourcemanagement.
Fisheries management agencies in the otherstates were invited to comment on the draft rocklobster fishery management plan. FisheriesVictoria is committed to this collaborativeapproach to co-operative research andmanagement of shared stocks.
Management ZonesThe commercial fishery is divided into Westernand Eastern Zones by longitude 143o40’E justeast of Cape Otway (Figure 1). The Western Zone(WZ) extends west to the South Australianborder at longitude 140o57.9’E and southwards tolatitude 40oS. The Eastern Zone (EZ) extends eastto the NSW border at latitude 39 o 12’S.
Rock lobster fishing is excluded from MPAs andfrom around oilrigs and declared protectedshipwrecks. Rock lobster fishing in specifiedbays and inlets is only permitted to holders ofboth a Rock Lobster Fishery Access Licence(RLFAL) and Port Phillip and Western Port BayAccess Licence.
Commercial Fishery Management
Fishery access licenceThere is a limited number of RLFALs in eachzone (Table 1). In 2002, there were 139 licences, ofwhich 85 were Western Zone licences and 54were Eastern Zone licences. The RLFAL entitlesthe holder to use rock lobster pots to take rocklobster and fish for sale. A licence holder mayemploy an operator to work the licence.
Current Management Arrangements
5
Rock Lobster Fishery Management Plan
Apollo Bay PaddockThe “Apollo Bay Paddock” is also known as the“50 pot zone” and is part of the Western Zonethat lies between longitude 143o10’E and 143o40’E(Figure 1). This 30 nautical mile wide areaextends south to latitude 40oS and is immediatelyto the west of Apollo Bay and includes giant crabfishing grounds. The number of pots that can beused in this area is limited to 50 per licence.
Eastern Zone corridorThe Eastern Zone Corridor is part of the EasternZone between longitude 143o40’E and 144oE tothe east of Apollo Bay and west of Lorne. This20 nautical mile wide area extends south tolatitude 39o12’S. Conditions on 10 Western Zonelicences allow operators to use up to 20 potsfrom their entitlement to catch rock lobster andfish in this area.
Commercial fishing gearRock lobsters are caught with baited pots thatare generally set and retrieved once each day.Commonly used baits include barracouta,Australian salmon, mackerel, carp and someimported species. Each pot is set individuallyand has a surface buoy with the vesselidentification mark. Circulating tanks, seawatersprays or wells in boats are used for keeping rocklobsters alive.
The size of a rock lobster pot is restricted to lessthan 150cm in length and width and 120cm inheight. A pot can have only one entrance and onechamber. Each pot must have at least one escapegap to allow undersized lobsters to escape.
Rock lobster pots are transferable betweenlicences within each zone. In the Western Zone,there is no maximum for the number of pots on alicence however, the average number used in2002 was 65 pots per licence. In the EasternZone, there is a maximum limit of 60 pots.However, the average number used in 2002 was40 pots per licence.
Individual transferable quotaQuota management was introduced to the rocklobster fishery in November 2001. ITQ units wereallocated to licence holders on the basis of acombination of pot entitlements and catchhistory as recommended by an independentAllocation Advisory Panel. The maximumnumber of quota units that may be held by an
access licence holder is 150 units in the WesternZone and 75 units in the Eastern Zone. Pots andquota units can be traded independently. TheTACC is set annually for a quota period from 1April to 31 March the following year.
Quota management systemThe quota management system (QMS) is basedon telephone and written records. The numberof rock lobsters caught are recorded in the dailycatch record book and then reported bytelephone using the interactive voice responsesystem (IVR) within a specified minimum periodprior to entering one of the 25 specified ports ormooring areas in Victoria. Licence holders mayalso apply for authorisation to land catches atPort MacDonnell, South Australia and Eden,New South Wales.
After landing, the catch must be weighed andreported through the IVR within 20 minutes.Catch disposal records must be completedbefore any rock lobster is sold or leaves the placeof landing. Catches, boats, coffs and completeddocumentation are inspected regularly byFisheries Officers. Daily catch records aresubmitted to the Department of PrimaryIndustries (DPI) each month.
Coff registersA “coff” is a sea cage used to store rock lobstersalive. Licence holders may be authorised to usecoffs. Licence holders using coffs are required tokeep a register of the number, time, date andtransfer of rock lobsters.
Processing and marketingThere is no requirement for a processing licenceor catch records in the marketing sector inVictoria. However, the signed catch disposalrecords with confirmation numbers must remainwith the rock lobster as they are transferred fromlanding to where they are sold.
Compliance and law enforcementFisheries officers have the power to inspect rocklobster catches and fishing gear to verify thesizes exceed the LMLs, the number and weightof rock lobsters reported using the IVR, dailycatch records, coff registers, catch disposalrecords and compliance with pot constructionand escape gaps.
6
Rock Lobster Fishery Management Plan
7
Recreational Fishery Management
Recreational fishing licenceThe RFL covers all forms of recreational fishingin all of Victoria’s freshwater, estuarine, andmarine waters. A RFL is required to take rocklobster by any prescribed fishing method.Exceptions include people aged less than 18years and over 70 years of age, the holders of aVictorian Seniors Card and various categories ofpensioners and veterans.
The number of RFLs is unlimited and thenumber of people who fish for rock lobsterscannot be determined from the current licensingsystem, which limits the potential to conductsurveys and to estimate recreational catches.
Recreational fishing gearRock lobster may only be taken by hand or bythe use of up to two recreational hoop nets. Thenumber of hoop nets in use is currentlyunknown. Hoop nets must be tagged andlabelled above the surface of the water. It isillegal to use or possess a snare, gaff, hook orother device designed for or capable of takingrock lobster. The use of a spear or speargun totake rock lobster is prohibited.
Catch and possession limitsCatch and possession limits apply to all personsother than those engaged in commercial fishingactivities. There is a bag limit of two rocklobsters per day and a possession limit of fourrock lobsters. Divers are required to measurerock lobster prior to bringing them to the surface.All rock lobsters taken by recreational fishersmust be tail-clipped or hole punched within fiveminutes of landing on a boat or onshore.
Co-management ArrangementsThe Fisheries Act 1995 established co-managementarrangements for fisheries in Victoria. As part ofthe co-management process, the Ministerreceives advice by consulting with:• Peak bodies: Seafood Industry Victoria, the
Victorian Aquaculture Council, VRFish andthe Victorian National Parks Association.
• Fisheries Co-Management Council (FCC) andits Fishery Committees. The most relevant arethe Commercial Rock Lobster and Giant CrabFishery Committee (CRLGCFC) and theRecreational Marine Committee (RMC).
• Government agencies principally FisheriesVictoria, Department of Primary Industries(DPI).
Environmental Issues
Rock lobster habitatsThe sustainable harvest of rock lobsters isdependent on maintaining the ecologicalintegrity of the reef habitats and adjacent marinecommunities along the Victorian coast. Thegeological substrate and relief of coastal reefsvaries along the coast and with depththroughout Victorian waters. Rocky habitats withan abundance of crevices, such as limestone,sandstone or basalt reefs provide shelter forpuerulus, juveniles and adults.
The associated flora and fauna of reef habitats ishighly diverse. Shallower reefs are oftendominated by algae, such as kelp, and inhabitedby grazing animals such as abalone and seaurchins. In deeper water, reef communities aremostly dominated by sessile invertebrate speciessuch as sponges. There is little information onthe ecological relationships between rocklobsters and other species that inhabit reefecosystems in southern Australia.
Responsibility for the management of theVictorian coast lies with several Victorian andCommonwealth Departments. The mainGovernment agencies are the DPI, Department ofSustainability and Environment, Parks Victoria,Environmental Protection Authority, coastalboards and local authorities.
Environmental threats to marine habitats thatmay impact the rock lobster fishery include:• Ocean outfalls,
• Infestation by exotic species,
• Pipeline construction,
• Multi-species effects of fishing,
• Algal blooms induced by nutrient run-off,
• Petroleum production and exploration.
Marine protected areas in VictoriaA system of marine national parks andsanctuaries has been established in Victoriacovering approximately 6% of coastal waters toprotect important habitats and species. Withinthese areas, all forms of commercial andrecreational fishing are or will be prohibitedunder the National Parks (Amendment) Act 2002.
There will be two stages of implementation.Fishing will be allowed in three marine nationalparks (Discovery Bay, Twelve Apostles and CapeHowe) and one marine sanctuary (Point Cook)
Rock Lobster Fishery Management Plan
(Point Cook) until 1 April 2004. Consequently,there will be a progressive reduction incommercial and recreational rock lobster fishinggrounds in both zones. In the Western Zone,there are two Marine National Parks and threeMarine Sanctuaries. In the Eastern Zone, thereare seven Marine National Parks and five MarineSanctuaries. Parks Victoria is responsible formanagement of these parks and sanctuaries.
Marine plan for South Eastern AustraliaAs part of the Australian Government’s OceansPolicy, regional marine plans will be prepared atthe large ecosystem level. A component of theseplans will be MPAs. The first plan beingdeveloped is for the South-East Marine Regionthat extends from Bermagui in New South Walesto Cape Jervis in South Australia covering watersfrom 3 to 200 nautical miles. The importance ofthe fishing industry in the South East MarineRegion is widely recognised and the combinedvalue of the rock lobster fisheries from all stateswas estimated at more than $100 million in 1999.This represents a third of the total value of allState and Commonwealth fisheries in the region.
8
Rock Lobster Fishery Management Plan
Objectives of the Management Plan
A requirement of the Fisheries Act 1995 is that amanagement plan must include the objectives ofthe plan.
Ecologically SustainableDevelopmentThe prime objective for the RLFMP is toformalise management of the rock lobster fisherywithin an ESD framework that is consistent withthe Fisheries Act 1995. To this end, the RLFMPspecifies fishery objectives, indicators, referencepoints, triggers and management actions.
The Commonwealth Guidelines for theecologically sustainable management of fisheriesand the strategic and export requirements underthe Environmental Protection and BiodiversityConservation Act 1999 have been taken intoaccount in the preparation of the RLFMP. Asubmission addressing the CommonwealthGuidelines has been prepared as a separatespecific report to Environment Australia (EA).
Economic EfficiencyThe RLFMP builds on the existing regime of ITQmanagement for the commercial fishery, a formof management that encourages economicefficiency. The RLFMP addresses issues relatingto pot limits in the fishery under an ITQ systemand the relationship between pot entitlements ona RLFAL and the number of ITQ units held onthat licence. The RLFMP is consistent with theVictorian Government Response to the NationalCompetition Policy (NCP) Review of the FisheriesAct 1995.
Separate Management in EachZoneThe RLFMP clearly identifies the managementarrangements for each management zone. TheRLFMP reviews the management sub-zones inthe Western and Eastern Zones and considers thepossible creation of a separate ‘Far EasternZone’. Linkages with the giant crab fishery arealso clearly articulated.
TAC Forum and Co-managementThe RLFMP clarifies co-management roles forTAC-setting through the establishment of anopen TAC Forum and an annual meetingbetween RLFAL holders, managers and fisheriesofficers. Reporting arrangements of the groupsinvolved in co-management are defined.
Assessing the Status of theResourceAn important objective of the RLFMP is toprovide a formal process for assessing the statusof the resource that leads to the TAC-settingprocess. The Marine and Freshwater ResourcesInstitute (MAFRI) undertakes the assessment ofthe rock lobster fishery. The results are publishedand presented to all stakeholders at annual StockAssessment Group workshops. The RLFMPidentifies the model and risk assessments asmajor inputs to the TAC-setting process togetherwith other fishery monitoring and the views ofstakeholders. The RLFMP outlines the processfor annual review of the TAC. The RLFMP alsoidentifies future monitoring and research needs.
Improved Management ofRecreational FisheriesThe RLFMP clarifies and strengthensmanagement arrangements for the recreationalsector, including the gear used for recreationalpurposes.
Cultural Use by IndigenousAustraliansThe RLFMP reflects the Victorian Government’scurrent policy on resource access by indigenousAustralians.
AquacultureThe RLFMP reviews interstate and overseaspolicies and examines the potential foraquaculture of rock lobsters. It outlines a processto assist future development.
9
Rock Lobster Fishery Management Plan
Fees and LeviesThe RLFMP rationalises the basis for collectingfees and levies. The RLFMP recognises that theintroduction of quotas will have implications forthe collection of fees.
Compliance and CommunicationThe RLFMP identifies the need to developcommunication and compliance strategies. Italso addresses the issue of interstate landings ofrock lobsters taken in Victorian waters.
Goal 2. Resource access and utilisation
10
Rock Lobster Fishery Management Plan
11
Rock Lobster Fishery Management Plan
Duration of the PlanThe RLFMP provides a basis for management ofthe fishery for a period of five years from 2003 to2008. This includes a period for review andpreparation of the next plan. Should there be aneed for the Minister to amend the plan prior toits review, notice of this intention will bepublished in the Government Gazette and therewill be formal consultation with stakeholders.
Goals, Objectives and StrategiesThe rock lobster fishery management goals,objectives and strategies are consistent with theFisheries Act 1995, the ESD framework of the
Standing Committee on Fisheries andAquaculture, the sustainability guidelines of theCommonwealth Government as well as otherVictorian and Commonwealth legislation andpolicies. The highest priority of this integratedplan is to ensure the sustainability of the rocklobster resource and the integrity of the marineecosystem that supports it.
Goal 1. Sustainability of the rocklobster resource• Re-build the stock biomass
• Maintain the ecological integrity of marineecosystems
Table 2. Summary of objectives and strategies for Goal 1
Objectives Strategies
1a) Re-build the rock lobster biomassManage the fisheries within • Maintain the spawning biomass in the Western Zone above 40%the TAC of 1951 levels
• Ensure the spawning biomass in the Eastern Zone exceeds 20% of1951 levels by 2007/08
• Annually review and set the TAC in each zone• Review the LML, bag limits, closed seasons and areas, and fishing
methods
Minimise discard mortality • Quantify discards of berried, damaged and undersized rockestimate mortality and lobsters
• Review seasonal closures and develop a code of practice fordiscarding rock lobsters
Obtain sound scientific • Conduct research and fishery monitoringknowledge of the stock status • Undertake annual stock assessments
1b) Maintain the ecological integrity of marine ecosystems• Maintain or reduce the total number of pots used by the fleet• Continue to use escape gaps in pots• Develop codes of practice for minimising interactions with
protected species of wildlife• Implement a monitoring program to record bycatch and
interactions with protected species of wildlife
• Obtain data to describe critical rock lobster habitats, monitor theecological effects of fishing and other impacts on the ecosystem
• Identify the ecological risks to rock lobster stocks and habitats
Minimise wildlife interactionsand ecological effects of rocklobster fishing
Assess ecological risks offishing and major threatsto rock lobster habitats
Rock Lobster Fishery Management Plan
12
Goal 2. Resource access and utilisation• Promote commercial use for economic
prosperity
• Provide recreational opportunities
Table 3. Summary of objectives and strategies for Goal 2
Objectives Strategies
2a) Promote commercial use for economic prosperityManage the commercial fishery • Set the TAC to achieve stable or increasing commercial catcheswithin the TAC • Review LMLs
• Develop and monitor indicators and reference points for socialand economic aspects of the fishery
• Enhance commercial fishing access
Obtain export accreditation • Meet Commonwealth guidelines for ecologically sustainable fishing
Maintain seafood supplies • Promote the rock lobster fishing industry as seafood suppliersand contributors to the rural economy
• Ensure food health standards are maintained and implement theVictorian seafood strategy
• Improve utilisation and marketing of by-catch and by-productspecies
Encourage competition and • Implement the Victorian Government’s response to NCP withinmarket forces the context of ESD
• Maintain licensing arrangements that allow access licences, potentitlements and quota units within each zone to beindependently tradeable
• Minimise restrictions on pot entitlements consistent with ESD• Remove the regulations relating to the Apollo Bay Paddock 50 pot
zone by November 2007• Consider tendering additional temporary quota units when the
available biomass exceeds 40% of the 1951 stock
Identify aquaculture • Monitor and review national and international research findingsopportunities • Encourage the fishing and aquaculture industry to participate in
research and development
2b) Provide recreational opportunitiesMaintain resource access for • Improve recreational access by re-building the stocksdivers and non-divers • Continue to allow active recreational fishing methods
• Encourage non-consumptive use through a code of practice andaccess for divers to no-take areas
Manage the recreational catch • Retain the daily bag limit of two rock lobsters per personwithin the TARC • Review and adjust the LMLs, bag limits, closed seasons and areas,
and fishing methods as required
Quantify the recreational catch • Develop licensing arrangements and a database that are suitable for recreational fishing surveys to provide better estimates of the catch
• Undertake regular surveys to estimate the recreational catch andeffort in both zones
• Provide opportunities for indigenouscommunities to access the resource fortraditional purposes
• Ensure equity for future generations
Rock Lobster Fishery Management Plan
Table 3. (continued)
Objectives Strategies
2c) Provide opportunities for indigenous communities to access the resource for traditional purposes• Provide equitable representation for the indigenous community
in co-management• Issue General Fisheries Permits for cultural and ceremonial
purposes• Provide fisheries management advice in relation to mediation of
native title claims
2d) Ensure equity for future generationsTo re-build the stocks to 40% • Manage the fisheries within the TAC to prevent overfishingof the 1951 biomass • Monitor rock lobster stocks on the fishing grounds and in MPAs
to assess their contribution in re-building the resource
To conserve marine ecosystems • Use environmentally benign fishing methods and maintaineffective working relationships with other Government agencies
• Establish effective compliance strategies to prevent fishing inMPAs
Goal 3. Effective fishery management• Monitor fisheries performance and
implement management arrangements
• Promote stakeholder participation in decisionmaking
• Ensure compliance with legislation
• Provide a public information service
Table 4. Summary of objectives and strategies for Goal 3
Objectives Strategies
3a) Monitor fisheries performance and implement management arrangementsContinue high quality • Review priorities and provide funding for research and fisherymonitoring, research and monitoringassessment • Improve data collection methods for by-catch, by-product and
interactions with marine wildlife, such as entanglements ofcetaceans
• Encourage industry to provide accurate records and assist inresearch programs
• Develop licensing arrangements and a database that are suitablefor recreational fishing surveys to provide better estimates of thecatch
• Estimate the illegal catch• Participate in research on by-catch species, exotic species,
endangered species of marine wildlife
Develop timely and cost • Amend legislation according to the RLFMP and prepareeffective management regulation impact statements arrangements • Establish compliance arrangements for inter state landings
• Review management based on the stock assessment, TAC Forumand trigger points, and decision rules assessment
• Prepare quota orders, renew licences with quota notices• Continue to improve methods of reporting to the QMS• Complete the consultation and planning review process during
the last year of the RLFMP
13
Rock Lobster Fishery Management Plan
14
Table 4. (continued)
Objectives Strategies
3b) Promote stakeholder participation in decision makingProvide opportunities for • Ensure the co-management process is effective and transparentstakeholder participation • Involve stakeholders in stock assessment workshops and
research• Establish the TAC Forum with equitable representation of
stakeholders• Establish an annual management meeting for industry, managers
and fisheries officers
Encourage development of • Encourage the fishing industry and the recreational sector tocodes of practice develop codes of practice that complements fishery and wildlife
management, reduces the risks of spreading or introducingexotic species, and minimises interactions with protected speciesincluding cetaceans
Raise community support for • Encourage the community to report offencescompliance with the law • Seek permission from all licence holders to publish lists of potand research entitlements and quota holdings
• Encourage industry and recreational sector to participate inresearch and to attend stock assessment meetings, the TACForum and management meetings
• Effectively disseminate research results by providing informationon research progress and stock assessment
3c) Ensure compliance with legislationEnforce the law and minimise • Develop and implement compliance strategies for the commercialillegal catches and recreational fisheries
• Frequent inspections of catches, records, coffs and landings.• Quantify and categorise the illegal catch• Gather intelligence and undertake investigations• Apprehend and prosecute offenders• Prepare annual reports on compliance levels and law
enforcement activities
Raise public awareness of • Develop and implement an effective information andfisheries regulations and communication strategypenalties • Publish information from court cases involving fisheries offences,
convictions and fines
3d) Provide a public information service• Produce and disseminate high quality information on fisheries
management and research and effectively disseminate using theDPI website and a variety of other media
Rock Lobster Fishery Management Plan
Sustainability of the Rock Lobster Resource
Indicators of Stock Status
Spawning and available biomassindicatorsRock lobster spawning biomass will be theprincipal biological indicator for assessingsustainability (Table 5 and Figures 2 and 3). Theprincipal social and economic indicator will bethe number of rock lobsters in the stock abovethe LML that are available to be caught by thefishery (the available biomass).
The estimated available biomass in 1951 (B1951
) isused as a proxy for the unfished biomass (B
0).
The biomass can not be reliably estimated priorto 1951 because this was the first year thatreliable fishing effort data was collected tocompliment catch records.
These indicators of stock abundance wereselected because they are easily understood andbased on assessment models and the datacollected by the monitoring program prior to2002. These stock biomass indicators are “model-dependent” and cannot be measured directly,but biomass trends can be verified using otherobserved indicators of stock status.
Observed indicatorsThe following indicators will be used to verifythe model and provide information for TAC-setting and other management measures:
Standardised catch ratesThere is a close relationship between rock lobsterbiomass and commercial catch rates measured asthe number or weight of rock lobsters per potlift. Standardisation of catch rates involvesadjustments to fishing effort that take intoaccount the progressive advances in fishingtechnology and changes in fishing practices overtime. Although catch rate data are incorporatedin the model, trends in standardised catch ratesmay be used directly in the TAC review.
Puerulus settlement and pre-recruit abundanceThe abundance of puerulus and pre-recruits canprovide an “early warning” of changes inrecruitment.
Mean size of rock lobsters in commercial andrecreational catchesChanges in the mean size of landed rock lobstersmay indicate trends in mortality and/orrecruitment or changes in fishing practices.
Relationship of catch and TACIn TAC-managed fisheries, catch versus TAC isoften used as an indicator. However, quotatrading, markets and fishing practices mayinfluence the catch relative to the TAC quiteindependently of the stock status.
Reference Points and PerformanceMeasuresThe stocks will be maintained above well definedand appropriate minimum biologicallyacceptable levels, particularly the limit referencepoint. Consistent with national and internationalexperience of rock lobster fisheries, the limitreference point is set at 20% of B
1951, for spawning
and available biomass. The target reference pointis 40% of B
1951. The reference points refer to
spawning and available biomass indicators only.
Fishery management performance will bemeasured by monitoring the status of thespawning and available biomass in each zonerelative to the reference points, based on five-year projections. Because the limit referencepoint reflects the conservation “bottom line”and is set at a lower biomass level than thetarget, there is a need for greater confidence thatthe outcome will be achieved. Consequently, theperformance measure for the limit referencepoint is a high probability (75%) of the biomassbeing greater than 20% of B
1951 (Table 5).
A lower
level of probability (50%) is appropriate forthe performance measure for the targetreference point.
15
Rock Lobster Fishery Management Plan
Tabl
e 5.
Su
mm
ary
of s
tock
in
dica
tors
, re
fere
nce
poi
nts
, pe
rfor
man
ce m
easu
res,
tri
gger
s an
d m
anag
emen
t ac
tion
s w
ith
resp
ect
to c
han
ges
in T
AC
Sto
ckL
imit
Tar
get
Per
form
ance
Mea
sure
Man
agem
ent
Tri
gg
erM
anag
emen
tIn
dic
ato
rR
efer
ence
Po
int
Ref
eren
ce P
oin
tA
ctio
n
Sp
awn
ing
bio
mas
s(M
od
eld
eriv
ed)
75%
pro
bab
ilit
y o
fb
ein
g g
reat
er t
han
20%
of
B1
95
1
50%
pro
bab
ilit
y o
fb
ein
g a
t 40
% o
fB
19
51
Ea
ster
n Z
on
eT
he
spaw
nin
g b
iom
ass
is a
bo
ve
20%
of
B1
95
1 w
ith
a 7
5% p
rob
abil
ity,
wit
hin
fiv
e yea
rs
If p
roje
ctio
ns
ind
icat
e th
at t
he
lim
itre
fere
nce
po
int
wil
l n
ot
be
reac
hed
by 2
007/
08
Red
uce
TA
C
Wh
en t
he
lim
it r
efer
ence
po
int
has
bee
n e
xcee
ded
an
d 5
yea
r p
roje
ctio
ns
ind
icat
e an
up
war
d t
ren
d
Rev
iew
TA
C
Wes
tern
Zo
ne
Sp
awn
ing
bio
mas
s is
at
or
abo
ve
40%
of
spaw
nin
g b
iom
ass
in 1
951
wit
h a
50%
pro
bab
ilit
y
Sp
awn
ing
bio
mas
s fa
lls
bel
ow
40%
of
spaw
nin
g b
iom
ass
in 1
951
wit
h a
gre
ater
th
an 5
0% p
rob
abil
ity
Red
uce
TA
C
Av
aila
ble
bio
mas
s(M
od
eld
eriv
ed)
75%
pro
bab
ilit
y o
fb
ein
g g
reat
er t
han
20%
of
B1
95
1
50%
pro
bab
ilit
y o
fb
ein
g g
reat
er t
han
40%
of
B1
95
1
Ea
ster
n Z
on
eU
pw
ard
tre
nd
in
av
aila
ble
bio
mas
sp
roje
ctio
ns
Av
aila
ble
bio
mas
s n
ot
incr
easi
ng
or
do
wn
war
d t
ren
d i
n 5
-yea
rp
roje
ctio
ns
Rev
iew
TA
C
Wes
tern
Zo
ne
Up
war
d t
ren
d i
n a
vai
lab
le b
iom
ass
pro
ject
ion
s
Av
aila
ble
bio
mas
s n
ot
incr
easi
ng
or
do
wn
war
d t
ren
d i
n 5
-yea
rp
roje
ctio
ns
Rev
iew
TA
C
Incr
easi
ng
tre
nd
in
5-y
ear
pro
ject
ion
sH
old
th
e 20
02T
AC
fo
r 3
yea
rs(u
nti
l 20
05/0
6),
then
rev
iew
Stan
dar
dis
edca
tch
rat
es(O
bse
rved
)
N
on
e
N
on
eE
ast
ern
Zo
ne
Up
war
d t
ren
d i
n s
tan
dar
dis
edca
tch
rat
e
Incr
ease
in
sta
nd
ard
ised
cat
chra
te t
o >
0.5
kg
/po
tlif
tR
evie
w T
AC
Dec
reas
ing
tre
nd
in
sta
nd
ard
ised
catc
h r
ate
Rev
iew
TA
C
Wes
tern
Zo
ne
Up
war
d t
ren
d i
n s
tan
dar
dis
edca
tch
rat
e
Incr
ease
in
sta
nd
ard
ised
cat
ch r
ate
to >
0.7
kg
/po
tlif
tR
evie
w T
AC
Dec
reas
ing
tre
nd
in
stan
dar
dis
ed c
atch
rat
eR
evie
w T
AC
Not
e:‘R
evie
w T
AC
’ m
ean
s co
nsi
der
the
man
agem
ent
impl
icat
ion
s of
mai
nta
inin
g, i
ncr
easi
ng
or d
ecre
asin
g th
e TA
C.
Var
iati
on o
f in
put
con
trol
s w
ill
also
be
con
side
red.
16
Rock Lobster Fishery Management Plan
Figure 2. Predicted trends in spawning biomass (upper) and available biomass (lower) for rock lobsters in theWestern Zone between 1951 and 2014, expressed as a percentage of the biomass in each year, relative to the 1951
biomass. Projections are based on a fixed TACC of 450t.
17
Rock Lobster Fishery Management Plan
Figure 3. Predicted trends in spawning biomass (upper) and available biomass (lower) for rock lobsters in theEastern Zone between 1951 and 2014, expressed as a percentage of the biomass in each year, relative to the 1951
biomass. Projections are based on 60 t fixed TACC .
18
Rock Lobster Fishery Management Plan
As well as indicators and reference points, theRLFMP specifies required trends in indicators,and the timeframe for recovery (Table 5). Thesevary between zones reflecting the status of theresource. For example, in the Western Zone theaim is to maintain the spawning biomass at orabove 40% of B
1951 with a 50% probability. In the
Eastern Zone the aim is to re-build the spawningbiomass with a 75% probability of being greaterthan 20% of B
1951 by 2007/08. In both zones, the
aim is to maintain the upward trend in availablebiomass in order to re-build the stock.
Triggers and Management ActionsWhere performance measures increase or fall toa pre-determined level, the RLFMP identifiesspecific management triggers relevant to eachindicator and performance measure (Table 5).Pre-determined management actions, also called“Decision Rules”, stipulate the requiredresponse, giving clear directions to the TACForum (see below). For instance, after a 3 yearconsecutive upward trend in the five yearprojections of available biomass, an increase inthe TAC will be considered. If there is noincrease or a declining trend in the five yearprojections of the available biomass in theWestern Zone, then a decrease in the TAC will beconsidered as part of the TAC review.
Trends in stock indicators and modelprojections, together with the views ofstakeholders, will be considered in makingrecommendations and decisions on theappropriate level of management response.
Stock assessment and model projectionsThe current stock assessment 3 is based on asophisticated length-structured model 4 thatutilises data on catches in weight and number,catch rates, the sizes of lobsters in the catch andbiological information such as growth,reproductive characteristics and mortalities.
Data sets used in the assessment include: areliable and long time series of commercial catchand effort data that have been collected since1951; size frequency of males and females incommercial catches that have been collectedsystematically since 1963; preliminary estimates
of the recreational catch 1996-98; more than 3500tag recaptures, larval settlement and pre-recruitmonitoring data since 1994.
The model enables projections of future stockbiomass and allows the impacts of future catcheson the resource to be assessed. The model hasbeen adapted to enable the impacts of theintroduction of MPAs in Victoria to beincorporated into the assessments.
Figures 2 and 3 show examples of model outputsfor the Western and Eastern Zones, respectively.Each figure shows the trajectory of spawningbiomass and available biomass from 1951 to thepresent with 15-year projections to 2017. Theprojections are based on fixed TACCs of 450tonnes in the Western Zone and 60 tonnes in theEastern Zone. In the example shown, it isassumed that future recreational catches willremain constant.
The assessment takes into account theimplementation of MPAs in each zone andallows for a 10% migration of lobsters from theMPAs. The target and limit reference points areshown in each figure. The 95% confidenceintervals get wider with increasing time into thefuture, reflecting the decrease in certaintybeyond the range of the data used in the model.
Co-management Process forReviewing ManagementArrangementsThe foundations of co-management in Victoriawere established by the Fisheries Act 1995. Thisconcept allows for a greater level of stakeholderinput into the decision making process. Inaddition to the existing co-managementarrangements, a TAC Forum will be establishedto provide all stakeholders with the opportunityto have input into the TAC-setting process. TheTAC Forum will consist of an independent chairand members of the Fisheries Co – ManagementCouncil’s Commercial Rock Lobster and GiantCrab Fishery Committee (CRLGCFC) andRecreational Marine Committee (RMC),representatives of peak bodies, observers andDPI staff (policy, compliance, and research).There will also be an annual meeting to improvefishery management, education and compliancestrategies.
3 Hobday, D.K. and Smith, D. (2003)4 Hobday, D.K. and Punt, A.E. (2001).
19
Rock Lobster Fishery Management Plan
Process for setting the total allowablecatch, size limits and closed seasonFollowing the annual stock assessmentworkshop, the TAC Forum will provide annualTAC recommendations and other advice to theDPI, and the FCC through the Commercial RockLobster and Giant Crab Fishery Committee andthe Marine Recreational Committee (Figure 4).
Figure 4. Co-management process for advice, consultation and decision making in relation to annual TAC setting
After considering the TAC recommendation, theDPI will prepare management advice includingsize limits, closed seasons and draft quota ordersfor the Minister. There will be a further formalconsultation between the Minister, the FCC andthe peak bodies before the Minister makes thedecision. The final quota order will be signed intime for licence renewals for the next quota period.
Peak Bodies
Co-ManagementCouncil
Commercial Rock Lobster& Giant Crab Fishery
Committee
Marine RecreationalCommittee
TAC Forum
Total Allowable Catch& Related Issues
Marine & FreshwaterResources Institute
Stock Assessment
Executive DirectorFisheries Victoria
Draft Quota Order &Management Advice
Minister’s Decision
Final Quota Order
Consultation
TACRecommendation
ScientificAdvice
Advice
Scientific Advice
Minister
February
January
December
November
October
20
Rock Lobster Fishery Management Plan
Commercial Fishery Management
The commercial fishery in each zone will bemanaged within the TACC, which is divided intoITQ units. The TACC is divided amongst 4000quota units in the Western Zone and 1000 quotaunits in the Eastern Zone.
The TACC will be set for the southern rocklobster, Jasus edwardsii, and will not include thecatches of the eastern rock lobster, Jasus verreauxi.Monitoring of by-product will be improved andcatches of eastern rock lobster will be recordedseparately on fishing returns. If the annual catchof eastern rock lobster exceeds one tonne, amanagement review will be triggered. Ifnecessary, specific controls to manage the easternrock lobster catch will be added as licenceconditions on the Eastern Zone RLFAL. FisheriesVictoria will continue to collaborate with NSWFisheries on co-operative management of easternrock lobster stocks.
The LML will be reviewed as part of the TACCsetting process to manage the available andspawning biomass in each zone taking intoaccount the differences in size at onset ofmaturity and growth. There is potential for alower size limit in the Western Zone because thesize at onset of maturity is lower than the LML.
Input controls that are consistent with theprinciples of ESD will remain including fishingseasons, definitions of fishing gear and the totalnumbers of pots in each zone of the fishery.
Fishing Rights, Access, QuotaOwnership and EntitlementsRock lobsters are owned by the Crown withownership passing to the licence or permitholder when they are taken from waters underVictorian jurisdiction in accordance with theconditions of the licence or permit. In each zone,the RLFAL holders with rock lobster quota arepermitted to use their pot entitlements to takerock lobsters within their quota allocation. Rocklobster fishing entitlements are based on thelegal ownership of RLFAL holders to quotaholdings and pot entitlements as defined in theFisheries Act 1995. RLFALs, quota holdings andpot entitlements are linked but may be traded
independently within each zone of the fishery.The ownership of quota units in the rock lobsterfishery will remain with RLFAL holders.
Licensing ArrangementsThe RLFAL will specify the licence holder,operator, boat, pot entitlement and zone. Themaximum number of access licences issued willbe 85 in the Western Zone and 54 in the EasternZone (Table 6). Licences will not be replacedwhen cancelled by a Court or removed from thefishery through mechanisms such as non-renewal or amalgamation. Access licences willcontinue to be fully transferable.
Table 6. Summary of Licensing Arrangements
Licences Western EasternZone Zone
Maximum number 85 54of licences
Maximum number no noof licences on a boat maximum maximum
PotsTotal number of pots 5147 2021in April 2003
Maximum pots on no noa licence maximum maximum
Maximum pots on 140 120a boat
Minimum pots on no noa licence minimum minimum
Minimum pots to 20 15activate licence
QuotaMaximum quota no noholding maximum maximum
Minimum quota 10 units 5 unitsholding
RLFALs expire on 31 March each year. Licencesmust be renewed before this date if the licenceholder wishes to commence fishing at the start ofa new quota period on 1 April. Licence holderswill not receive a quota notice for a new quota
21
Rock Lobster Fishery Management Plan
period until their licence is renewed. RLFALswill be issued for a year, but options for five-yearlicences will be considered after furtherconsultation.
A licence holder may apply to vary theconditions on the access licence relating to theoperators, boat and pot entitlements. Theregulations will be amended to allow up to twooperators to be named on a RLFAL so that eitherperson may operate the licence. The same boatmay be specified on more than one access licencefor the same zone, but not for different zones.This will allow multiple licences to be operatedfrom one boat within a zone. Although thefishing capacity of the fleet will continue to becontained by the total pot limit in each zone,pots may be permanently transferred betweenRLFAL licences within each zone. In addition,arrangements for temporary transfers of pots forone licensing year will be introduced.
Quota HoldingsEach year when a licence is renewed, a quotanotice is issued with the ITQ units owned by eachlicence holder. Only RLFAL holders are entitledto own ITQ units. A licence holder may apply totransfer ITQ units to the holder of anotherRLFAL within the same zone. ITQ units may betransferred permanently, or for a quota period.There will be no maximum amount of ITQ unitsthat can be held on a licence in either zone. Theminimum holdings of ten ITQ units in the WesternZone and five ITQ units in the Eastern Zone willbe retained to contain quota management costsassociated with compliance (Table 6).
Pot EntitlementsThe total number of pots on licences in April2003 is 5147 in the Western Zone and 2021 in theEastern Zone. The use of these pots representsthe environmental “footprint” of the fishery. Inorder to minimise the “footprint” and to beconsistent with the principles of ESD, the limiton the total number of pots that can be used ineach zone of the fishery will be retained. Thiswill address concerns about potential wastage ofthe resource caused by octopus predation of rocklobsters in pots that are not lifted each day. Italso recognises that a larger number of pots inthe fishery would increase the possibility ofinteraction with marine wildlife.
Minimum and maximum potentitlements on a licenceThere will be a change to the minimum numberof pots that are required on a licence. Licenceholders will be able to own quota without pots,but to operate in the fishery, active licences musthave a minimum of 20 pots in the Western Zoneand 15 pots in the Eastern Zone (Table 6).
There will be no maximum number of pots thatmay be held on a licence in either zone. This isconsidered to be an unnecessary restriction asthere is no limit on the number of licences that aperson can own or the number of licences that canbe attached to one boat. However, the maximumnumber of pots that can be worked from one boatwill be 140 and 120 pots in the Western andEastern Zone, respectively. This reflects themaximum number of pots used in 2002, which ismuch greater than the average for the fleet.
National Competition PolicyFollowing the NCP review of the Fisheries Act1995, several recommendations for the rocklobster fishery were accepted by the VictorianGovernment. The planned introduction of ITQmanagement was found to be consistent withNCP recommendations as a means of achievinga sustainable catch and correcting for excessfishing effort. The removal of pot restrictions perboat was recommended in the Governmentresponse to NCP to allow economies of scale andentry of small-scale operators taking into accountcompliance costs. A process of public auction,tender or ballot was recommended in theGovernment response to NCP in order to adoptan efficient and transparent process for theallocation of extra quota above threshold limits.
Pot limits for the fisheryFor sound economic, ecological and biologicalreasons, the total number of pots used in thefishery will not be increased. This will help toachieve a sustainable catch, correct for excessfishing effort and prevent an increase inpotential hazards for boats and wildlife. It willalso reduce the risks associated with theunrestricted use of pots during winter such asoverfishing of males, imbalanced sex ratios andimpaired reproduction. From an environmentalpoint of view, the advantages of not using morefishing gear to take the commercial catch iswidely recognised as an important principle ofESD. The need to minimise by-catch and wildlifeinteractions and environmental effects of fishingwill be addressed by containing the fishingcapacity of the fleet.
22
Rock Lobster Fishery Management Plan
23
There is also concern that the removal ofrestrictions on the fishing capacity of the fleetmay lead to inefficiency. This may occur becauseof economic incentives for individuals to uselarge numbers of pots that will result inenvironmental and economic losses to thefishery as a whole. Larger pot numbers may beused to monopolise prime fishing grounds andthis could lead to gear interactions and createinput inefficiency. Furthermore, this may alsocause higher mortality of rock lobsters fromoctopus predation if all pots are not lifted daily.
Pot entitlements are also recognised as valuableassets that are freely traded according tocompetitive market forces amongst licenceholders in each zone. There is a very strongconsensus within the fishing industry that thetotal number of pots used in the fishery shouldnot be allowed to increase and that potentitlements on licences should be retained.
Changes to restrictions on quotaholdings and potsManagement arrangements will be changed toaccommodate the Government’s response to NCP.Restrictions will be removed on maximum quotaholdings, maximum and minimum numbers ofpots on a licence, and multiple licences on aboat. The 50-pot limit in the Apollo Bay Paddockwill be withdrawn by November 2007.
In order to minimise compliance costs, there willbe a minimum of ten and five quota units in theWestern and Eastern Zone, respectively.Compliance costs are directly related to thenumber of active licences. The minimumnumber of quota units will discourage inactivelicences, particularly in the Eastern Zone, frombecoming active using very small quotaholdings. There will also be a minimum of 20pots in the Western Zone and 15 pots in theEastern Zone for active licences.
Relationship between quota holdingsand pot entitlementsQuota units and pot entitlements on accesslicences will remain as separate, independentlytradeable commodities within the fishery. Thiswill enable the industry to restructure in anefficient manner. It will also allow greaterflexibility for licence holders.
Allocation of additional quota abovethreshold levelsAllocation of new quota units will only beconsidered when there is a 75% probability of thestocks remaining above the target reference
point (40% of the 1951 available biomass) for 3years. Any new quota units will be temporaryand valid for a single quota year, and can only beheld by an existing RLFAL holder.
Apollo Bay PaddockA review of management arrangements for theApollo Bay Paddock 50-pot zone was specificallyidentified in the Minister’s Guidelines and theGovernments response to the NCP. Theregulations relating to the 50-pot limit in theApollo Bay Paddock are regarded as anti-competitive according to the NCP. However, ifthese regulations were immediately removed,local catch rates and stock abundance woulddecline as operators with larger pot entitlementsmoved on to this prime fishing ground. Therecent establishment of MPAs nearby is alsoexpected to translocate fishing pressure into theApollo Bay Paddock. The combined impactswould disadvantage the local fleet that is stilladjusting to the changes associated with theintroduction of quota management.
Although it is recognised that the independentquota allocation panel took into considerationthe lower numbers of pots used by Apollo BayRLFAL holders in the past there are compellingbiological, social and economic reasons forallowing a period for adjustment. A transitionperiod will provide more time for Apollo Bayand Port Campbell operators to buy more pots orquota and become more competitive as theyhave had little incentive to invest in additionalpots in the past.
The Apollo Bay Paddock 50 pot zone has ahigher abundance of rock lobsters than adjacentfishing grounds. Providing more time for thestocks to re-build will reduce the incentive for aconcentration of fishing activity in the ApolloBay Paddock when the regulations are removed.
In order to take these special circumstances intoaccount, the following strategies will be adoptedto remove the regulations relating to the ApolloBay Paddock:• The 50-pot limit will be withdrawn by 15
November 2007.
• Until the 15 November 2007, licence holderswill be restricted to 50 pots on each licence.
• Prior to 15 November 2007 licence holderswill be able to use up to two licences on aboat and will be allowed to use 50 pots fromeach licence on a boat.
Rock Lobster Fishery Management Plan
• Waters greater than 150m depth will beexcluded from the Apollo Bay Paddock 50 potzone (see Figure 1).
There will also be no restriction on the numbersof giant crab pots that may be carried on a boatthrough the Apollo Bay Paddock provided thepot limit per boat is not exceeded.
These strategies will allow giant crab accesslicence holders to transport their pots across theApollo Bay Paddock and use their full potentitlements in waters deeper than 150m.Eventually, Western Zone licence holders will beable to use their full pot entitlement throughoutthe Western Zone after these regulations arewithdrawn.
Eastern Zone CorridorLicence conditions relating to the Eastern ZoneCorridor will be removed when these licencesare transferred. However, the only licence holderwith a recent rock lobster catch history in theEastern Zone Corridor will continue to beallowed to take rock lobster in this area. Theremaining licence holders with conditions thatpermit fishing in the Eastern Zone Corridor willnot be allowed to take rock lobsters but willcontinue to be allowed to take fish with fish trapsin this area until their licences are transferred.
Far Eastern Zone FisheryThe Far Eastern Zone will not be established dueto the fact that there is no longer any support forthis proposal. There is strong opposition fromthe industry resulting from the fact thatboundary changes would adversely affect quotatrading and licence values.
Commercial Fishery Complianceand Communication
Compliance StrategyFisheries Victoria, in consultation with the peakbodies, will develop a compliance strategy forthe rock lobster fishery during 2003/04. Thecompliance strategy will include:• A schedule of management actions for
implementation.
• Performance measures.
• A monitoring and review process to ensurethat the objectives of the compliance strategyare achieved.
The priorities for the compliance strategy will beto ensure that:• The catches taken in Victorian waters are
within the quota holding for each RLFAL sothat the total catch from each zone does notexceed the commercial TAC.
• Rock lobster pots used by operators complywith regulations and pot entitlements.
• Compliance with legal minimum lengths, baglimits and possession limits.
• The taking of rock lobsters for sale by peoplewithout a RLFAL and quota is reduced.
• Rock lobsters are not taken from MarineProtected Areas.
Communication StrategyFisheries Victoria, in consultation with peakbodies, will develop a communication strategyfor the rock lobster fishery during 2003/04. Thestrategy will include:• A schedule of management actions for
implementation.
• Performance measures.
• A monitoring and review process to ensurethat the objectives of the education strategyare achieved.
Priorities will include :• Holding an annual meeting for RLFAL
holders, fisheries officers and managers toassist research, management, compliance andcommunication.
• Community awareness about offences.
• Public access to information on fisheriesmanagement and research through the DPIwebsite and other media.
Code of Practice for Commercial FishingIn order to encourage all aspects of commercialfishery management, a code of practice will bedeveloped by CRLGCFC to minimise fishingimpacts on the ecosystem and wildlifeinteractions and to enhance stock conservation,research and compliance. Implementation andextension of this code of practice will be a highpriority for FCC and SIV.
Arrangements for interstate landingsPreviously, rock lobster catches from Victorianwaters could be landed in Port MacDonnell (SA)and in Eden (NSW), but not in Tasmania.Following discussions with Tasmanianauthorities, new arrangements will be requestedduring the period of the RLFMP to allow withprior notice, the landing of rock lobsters caughtin Victorian waters at specific Tasmanian ports,
24
Rock Lobster Fishery Management Plan
including Currie, King Island. The additional costof management arrangements incurred to enforceVictorian legislation relating to landings at portsin other states will be recovered from the operator.
Fees and LeviesThe Victorian Government and the FCC isreviewing policies on cost recovery for fisheriesmanagement in Victoria. Subject to Governmentpolicy, it is likely that there will be progressiveintroduction of cost recovery that is consistentwith the NCP response. Fees will continue to becharged to cover the administrative costs forlicence transfer and variations.
RLFAL holders will continue to contribute to thecost of management, compliance and researchthrough an annual levy when licences arerenewed. The basis for the levy will be changedhowever, to be consistent with quotamanagement. Currently, the levy for RLFALsconsists of a fixed amount for each licence and avariable amount based on the number of pots.The variable amount will be changed to reflectthe number of quota units and pots on thelicence. Two thirds of the variable component ofthe levy will be based on quota units and onethird on the pot entitlement.
Recreational Fishery ManagementThis management plan recognises the principleof resource allocation and establishes a quota forthe recreational fishery. A TARC will beintroduced and set at 5% and 10% of the TAC inthe Western Zone and Eastern Zone, respectively.This will allow the recreational catch to beincreased or decreased equitably.
Management of the RecreationalCatchThe TARC, which represents an upper limit, willbe the reference point to trigger a managementreview. The TARC requires improved knowledgeof the recreational catch. RFL endorsement orother agreed methods of improved monitoringand estimation of the recreational catch will beestablished as a matter of high priority.
The current management regime and the currentregulations applying to the recreational fisherywill remain. The fishery will continue to bemanaged with daily bag limits, fishing gearcontrols and seasonal closures. In general,regulations in relation to the stock that apply tothe commercial sector will apply equally to the
recreational sector. Proposals to changes in theregulation regime applying to the recreationalfishery will occur through an open andtransparent consultative process betweenFCC, the DPI, Fisheries Victoria and recognisedpeak bodies.
Use of hookah and other recreationalfishing methodsThere will be no change to recreational fishingmethods for taking rock lobster, which will onlybe based on active fishing methods. Recreationallicence holders will continue to be allowed to usetwo hoop nets per person, hookah divingequipment, SCUBA and snorkel gear to take rocklobster by hand. The current prohibition on theuse of snares and blunt hooks in the recreationalrock lobster fishery will be reviewed whenreliable estimates of the recreational catch havebeen obtained.
Legal minimum length, bag limits andmarkingIn general, the LML will remain consistent withthe commercial sector unless all relevantstakeholders are consulted and it is determinedthat it is in the interest of the fishery to dootherwise. Daily bag limit and possession limitswill apply. There will be no change in theregulations that require all rock lobster taken byrecreational fishers to be effectively markedwithin five minutes of landing rock lobster in aboat or on shore.
Code of Practice for RecreationalFishingIn order to encourage all aspects of recreationalfishery management, a code of practice forrecreational fishing will be developed by theMarine Recreational Committee of the FCC,VRFish and the Victorian Scuba DiversFederation to enhance stock conservation,research and compliance.
Recreational Fishery Complianceand CommunicationThe compliance and communication strategieswill aim to improve compliance with bag limits;size limits and marking of rock lobsters byregularly checking popular diving sites,particularly on weekends. Compliance withregulations relating to fishing gear, particularlyin regard to the number of hoop nets per person,will be improved through implementation of thecompliance and communication strategies.
25
Rock Lobster Fishery Management Plan
Traditional Access and Use by theIndigenous Community
Native title is based on the laws and customs ofindigenous people and is recognised by thecommon law of Australia. Under theCommonwealth Native Title Act 1993, indigenouspeople can claim native title on Crown land andwaters in their traditional lands and waters. TheVictorian Government is committed to buildinga new understanding between Victoria’sAboriginal people and the wider community.The Government is working towardsreconciliation through its Indigenous PartnershipStrategy. The Victorian Government hasindicated that its policy will be to mediate nativetitle claims.
For specified cultural and ceremonial purposes,members of the indigenous community may beissued with general fisheries permits that allowrock lobsters to be taken beyond the recreationalbag limit. These strategies will provide resourceaccess and allow traditional use of rock lobstersby the indigenous community.
26
Rock Lobster Fishery Management Plan
Development of Aquaculture
The potential for rock lobster aquaculture isbased on the high price and large domestic andexport markets for live and processed product.The conclusion of the interstate and internationalreview (Appendix 5) found that there were fourmain approaches to rock lobster aquacultureincluding closed culture, on-growing of wildcaught puerulus, on-growing of fishery caughtlobsters and wild stock enhancement.
Rock lobster aquaculture of faster growingtropical species has been demonstrated to becommercially viable in other countries wherelabour costs are low and puerulus can beeconomically harvested in the wild.
Aquaculture techniques for southern rock lobsterpropagation and production have not yet beendeveloped. The results of large scale industrialtrials in New Zealand using southern rocklobster have clearly shown that the harvest andon-growing of puerulus from the wild is noteconomically viable using presently availabletechnology. Hatchery production is not yettechnically feasible and further research isneeded to successfully develop commercial rocklobster aquaculture in Victoria.
Opportunities for Rock LobsterAquacultureIn Australia, FRDC established the Rock LobsterEnhancement and Aquaculture Sub-Program(RLEAS) in July 1998 to develop a cohesive andnationally coordinated approach to the researchand development issues for all commercialspecies of rock lobster. The objective of theprogram is to provide technology for use inAustralian rock lobster enhancement andaquaculture systems so they can beinternationally competitive and can operate inharmony with the wild fisheries. More than $8million has already been committed to researchand development in Australia so far however,considerable technical and logistical difficultieshave yet to be overcome.
The technology is intended to encourage thedevelopment of a viable rock lobster aquaculture
industry in Australia, but with specificconsideration and contingency for:• Protection of the wild fishery in terms of
economic and social viability.
• Neutral or positive impact on the wild fisheryin terms of stock numbers while maintaininggenetic integrity.
• Commercial viability of closing the life cycleof rock lobsters.
The RLEAS Steering Committee recentlyreviewed the research and developmentpriorities. It was concluded that the long-termfuture for rock lobster aquaculture depends onthe development of propagation techniques thatwill enable the hatchery production and culturefrom eggs to juvenile rock lobsters. Lowerpriorities were assigned to on-growing ofpuerulus and wild fishery enhancement.
Rock Lobster Aquaculture StrategyDuring this management plan, internationaldevelopments in rock lobster aquacultureresearch will be monitored and reviewed again.The DPI aquaculture extension officers, VAC andFRDC RLEAS will disseminate information onrock lobster aquaculture to industry members. Ifthere is a significant advance in technology, areport on the developments will be prepared forthe DPI and stakeholders. In such an event,opportunities for aquaculture research anddevelopment projects would be considered andrecommended by a working group with equalrepresentation from the DPI and members of thefishing and aquaculture industry. Approvals forresearch and development permit applicationswill take into consideration the need forenvironmentally sound and economically viablerock lobster aquaculture. The issue of researchpermits would only allow the harvest ofpuerulus from the sea in such a way that therewould be no negative impact on wild stocks.
Aquaculture research and development throughthe FRDC Sub-program into propagationtechniques and broodstock manipulation will beencouraged as a high priority. Techniques forwild stock enhancement and the use of artificialreefs will also be evaluated.
27
Rock Lobster Fishery Management Plan
Ecosystem Interactions
Ecological Impact of Rock LobsterFishingOne of the fundamental principles of ESD is thatfisheries management should minimise theimpact of fishing on the structure, productivity,function and biological diversity of theecosystem. Rock lobster pots are believed to haveminimal direct effects on the seabed. Forexample, each year the entire fleet of potscontacts less than 0.0017% of the total area ofseabed at less than 150m depth.
Discarding of undersized, damaged,soft shell and berried rock lobstersDirect impacts of fishing through mortality ofdiscarded rock lobsters will be assessed byimplementing a monitoring program so thatthese effects can be taken into account in stockassessments.
Escape gaps will continue to be used in pots tominimise the by-catch of undersized rocklobsters. In order to minimise discardingmortality of those that are caught in pots,undersized rock lobsters and crabs are quicklyreturned to the sea alive near the habitats wherethey were caught. The closed season providesprotection for female rock lobsters and giantcrabs in berry.
Table 7. The main species and total catch (tonnes) ofby-product in each zone reported on commercial
fishing returns during 2000/01
Species Western Eastern VictoriaZone Zone
Octopus 19.5 3.0 22.5
Leatherjacket 6.0 4.5 10.5
Cod 2.9 0.0 2.9unspecified
Wrasse 2.2 2.7 4.9unspecified
Snapper 1.6 0.6 2.2
Other 5.2 2.5 7.7(25 species)
Total 37.4 13.3 50.7
By-catch speciesFishery interactions with by-catch species arebelieved to be low because the majority ofspecies, such as hermit crabs, are caught andreleased alive. However, a system of by-catchmonitoring, including independent validation,will be introduced by 2004. The data collectedwill then be available for ecological riskassessments. Fishing effects on by-catch specieswill be minimised through codes of practice.
Species landed as by-product orused as baitTwenty-three tonnes of octopus and 28 tonnes offish were retained as by-product in 2000/01.There are about 30 fish species landed as by-product, but it is mostly composed ofleatherjackets (Table 7). Crabs (giant crabPseudocarcinus gigas, sand crab Ovalipesaustraliensis and velvet crab Nectocarcinustuberculosis) are also caught in lobster pots andlanded. Giant crabs above the legal minimumlength are retained by those with access to andquota for the giant crab fishery.
The catch of eastern rock lobster, Jasus verreauxi,is unknown but considered to be less than 0.5 t.Catches will be reported on fishing returnsseparately as a by-product. Direct impacts offishing and indirect ecological effects on reefcommunities from the mortality of by-productspecies will be assessed by implementing amonitoring program. The data collected willthen be available for ecological risk assessments.
Biodiversity conservationThere is no available evidence that wouldsupport the listing of rock lobsters or any of theknown by-catch or by-product species as athreatened species in Victoria under the Flora andFauna Guarantee Act 1988. The managementregime will monitor by-catch and by-productspecies in order to assess the effects of thefishery on the biodiversity values in the coastalwaters of Victoria so as to minimise theenvironmental impacts.
28
Rock Lobster Fishery Management Plan
Protection of wildlifeProtected wildlife species that inhabit Victorianwaters include dolphins and whales (SouthernRight Whales Eubalaena australis, Blue WhalesBalaenoptera musculus, and Humpback Whales),the leatherback turtle (Dermochelys coriacea) andAustralian fur seals (Arctocephalus pusillusdoriferus).
Both the Southern Right Whale and the Bluewhale are listed as “Endangered” under theCommonwealth Environment Protection andBiodiversity Conservation Act 1999, and listed as“Critically endangered” in Victoria. The Floraand Fauna Guarantee Act 1988 lists the SouthernRight Whale.
Interaction between rock lobster fishing gear andprotected species of wildlife is extremely rare inVictoria. There have been no confirmed reportsof mortality of whales or dolphins attributed torock lobster fishing gear in Victorian waters.Leatherback turtles very occasionally becomeentangled in ropes. These are mostly releasedalive and only one or two are known to havedied in living memory.
Potential direct impacts on marine mammalsand turtles from entanglement in potlines will becontained by preventing an increase in fishingcapacity and by implementing codes of practiceto assist wildlife protection. In order to collectmore information on the interactions betweenfisheries and marine wildlife, a new monitoringprogram will be implemented. Penalties forfailing to report interactions with protectedspecies will also be reviewed.
There are occasional interactions with the largeand expanding seal population in Victorianwaters. The population forages throughout BassStrait at depths of less than 100m, particularly tothe west of Wilson’s Promontory, where there aremany colonies and haul-out sites. Theconservation status of Australian fur seals isconsidered to be low risk but dependent onsecure foraging environments and protection ofbreeding sites.
Seal mortality rates in pots are low and estimatedto be less than one seal per 100 thousand potlifts.Recent innovations in fishing practices reducethe loss of bait and makes pots less attractive toseals. Some operators have developed benign
seal exclusion devices and other operators usecarp for bait that is less attractive to seals.During the RLFMP, these industry initiatives toimprove wildlife protection will be encouragedand incorporated in a code of practice.
Identification of Critical Habitatsfor Rock LobstersAlthough it is well known that rock lobsters arepredominantly a reef dwelling species, there isvery little information on the habitatrequirements and ecological relationships ofjuvenile or adults with other species in Victorianwaters. Further research and monitoring willenhance scientific knowledge of reef habitatstatus and species interactions.
Reduction of Human Impacts onRock Lobster HabitatsSome of the risks to the ecological integrity ofreef communities have been identified below inTable 8. In order to minimise or mitigate harmfulactivities and avoid long-term degradation ofreef ecosystems, all threatening processes will berecognised in an ecological risk assessment. Rocklobster habitat assessments for shallow anddeepwater reefs will be conducted to evaluatethe threatening processes. However, morescientific knowledge is needed about thecomplexities of the ecological interactionsbetween rock lobsters and other exploited reefspecies, particularly abalone and sea urchin. Thestructure and function of communities on fishedreefs will be compared to those reefs in MPAs.
Other ecological issuesIn order to minimise the ecological threatscaused by the introduction of exotic species, thepolicies of the Victorian and CommonwealthGovernments will be implemented as they aredeveloped. Industry initiatives to utilise endemicfish from Australia for bait will help to preventthe introduction and translocation of exoticspecies. This will be encouraged andincorporated in a code of practice.
29
Rock Lobster Fishery Management Plan
30
Responsibility for environmentalassessment and managementThere are many Victorian and Commonwealthagencies that are responsible for monitoring,assessment and management of the marineenvironment. All relevant Government policiesand strategies, such as threat abatement plans,threatened species recovery plans, NationalAction Plans, by-catch action strategies will beconsidered and fishery managementarrangements altered as necessary.
The process for incorporating policies andstrategies from other Government agencies willinvolve consultation during the annual forum
and meetings of the committees of the FisheriesCo-Management Council, peak bodies andFisheries Victoria.
Fisheries Victoria will also makerecommendations to the appropriategovernment agency in relation to environmentalmanagement and ecological integrity of rocklobster habitats. Improvements will be achievedthrough the development of joint strategies andby maintaining close working relationshipsbetween the relevant agencies.
Table 8. Some risks to the ecological integrity of reef communities
Ecological impact Examples of threatening processes Management Action
Physical damage ordisturbance of reefs
Mortality of rocklobsters and otherspecies
Channel deepening
Submarine cables or pipe laying
Oil industry construction
Input into preparation of EnvironmentalImpact Statement
Development of ecological indicators,performance measures, triggers anddecision rules
Trawl or scallop fishing near reefs Development of a fishing code ofpractice
Discards of undersized, damaged,softshell and berried rock lobsters
Seismic surveys
Research, monitoring and by-catchassessment
Input into preparation of theEnvironmental Impact Statement
Temporary ecosystemchange
Excessive fishing of reef speciessuch as rock lobster, abalone andsea urchins
Research, monitoring and ecological riskassessment
Development of ecological indicators,performance measures, triggers anddecision rules
Permanent ecosystemchange
Introduction or translocation ofexotic marine species and diseases
Research, monitoring and ecological riskassessment including types of bait used
Input into ballast water protocols
Development of ecological indicators,performance measures, triggers anddecision rules and emergency responses
Environmentalpollution
Effects of nutrient inputs and algalblooms from rivers and oceanoutfalls
Pollution from shipping
Collaboration with the VictorianEnvironmental Protection Agency
Development of ecological indicators,performance measures, triggers anddecision rules, and emergency responses
Rock Lobster Fishery Management Plan
Research and Development
Research and development is a vital componentof rock lobster fishery management andaquaculture development. There has beenconsiderable investment in research on rocklobster in Australia and New Zealand at anumber of research institutes and universities.International workshops on lobster biology andmanagement are held every three yearsproviding benchmarks for scientificadvancement and opportunities for sharedknowledge and research collaboration. Giventhis background the rock lobster resource byfisheries standards, is well monitored andunderstood.
The main focus for research and developmentduring the next five years will be to provide theinformation required for implementingGovernment ESD policies for fisheries andaquaculture in Victoria. To meet this need,information is required in the followingcategories:
Fisheries biology and assessmentThe aim is to improve the understanding ofstock dynamics and evaluation of alternativemanagement measures. This includes:• Development of better indicators of stock
status including fishery independent surveysand more robust estimates of the recreationalcatch.
• Further development and refinement of stockassessment models.
Ecological studiesThe aim is to gain an understanding of therelationship between rock lobster stocks and theecosystem with regard to reef habitats and theimpact of fishing. This includes:• Development of robust sustainability
indicators.
• Understanding the interactions of rock lobsterwith other species and the impacts of harveston these relationships.
Social and economic evaluationThe aim is to obtain information on the socialand economic consequences of trends in thefishery and the implications of managementactions. This includes:• Economic assessment and monitoring of the
fishery.
• More information on the social and economicaspects of the catching, post harvest andrecreational sectors.
• Evaluation of management measures toensure optimal utilisation.
AquacultureThe aim is to monitor the development oftechniques for rock lobster aquaculture and toassess opportunities for applications in Victoria.
Research Planning and PrioritiesIdentifying research needs and priorities is adynamic process that requires clear mechanismsto ensure that research meets the needs ofmanagement and stakeholders.
It is appropriate that the Rock Lobster FisheryAssessment Group (RLFAG) guide researchpriorities for the commercial and recreationalsector. Priorities for aquaculture research will beidentified in conjunction with the FCCAquaculture Committee, the VAC and the FRDCRLEAS. These groups will liaise with the FCCResearch Committee that is responsible forproviding advice on research and developmentissues, strategic research planning and advice toFRDC on funding research and development inVictoria.
The FCC Research Committee has developed afive-year research plan and a review process.This will involve close liaison between the FCCResearch Committee the RLFAG, CRLGCFC,and MRC. The future research needs andpriorities shown in Appendix 6 are based onthose identified by the FCC Research Committee.
31
Rock Lobster Fishery Management Plan
Research FundingThe DPI and FRDC have provided most of theresearch funding for rock lobster research inVictoria. Revenue derived from recreationallicences represents a potential funding source.Private investment in research and developmentby companies interested in aquaculture andcooperative research with the fishing industryand the recreational sector are supplementarysources of funding that will be encouraged.
The FCC Research Committee will makerecommendations to FRDC based on projectproposals submitted by research providers. TheDPI will make decisions on budget allocationsfor rock lobster research and monitoringprograms.
Support for research proposals by the RLFAGand aquaculture committees will enhance theprospects of research funding allocations.
32
Rock Lobster Fishery Management Plan
Management Plan Implementation
The RLFMP describes new arrangements for themanagement of rock lobster stocks in Victorianwaters, with emphasis on:• Ecological sustainability and resource
utilisation by the commercial fishing industry.
• Development of aquaculture.
• Access for the recreational and indigenouscommunities, with due regard for the rightsof future generations.
The RLFMP will have effect following theMinister’s declaration by a notice published inthe Government Gazette. In further support of theRLFMP it will be necessary to amend the FisheriesAct 1995 and associated regulations. Ongoingimplementation will require actions by theGovernment with respect to certain policymatters, by the DPI with respect to day-to-daymanagement and by the other stakeholders.
An annual progress report of RLFMPimplementation will be prepared providingdetails of improved management arrangements,stock assessments, research and monitoring,
education and compliance strategies. TheRLFMP, stock assessments and implementationprogress will be made available to the publicthrough the internet and published reports.
Costs of ImplementationEstimates by Fisheries Victoria of theestablishment and recurrent costs for theimplementation of the RLFMP are listed againstthe identified strategies in Table 9. These costswill be met through budget allocations to DPIand implementation of cost recovery policiesestablished by Government.
Review of the Management PlanThe review of the RLFMP and preparation of anew plan will commence in 2007 and willexamine all aspects of fisheries managementagainst the defined goals, performanceindicators and reference points. Should there bea need for the Minister to amend the plan priorto its review notice of this intention will bepublished in the Government Gazette.
33
Rock Lobster Fishery Management Plan
Tabl
e 9.
Res
pon
sibi
lity
, C
osts
an
d S
ched
ule
for
Im
plem
enta
tion
of
the
Roc
k L
obst
er F
ishe
ry M
anag
emen
t P
lan
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 1
. S
ust
ain
abil
ity
of
the
Ro
ck L
ob
ster
Res
ou
rce
1a)
Re-
bu
ild
th
e b
iom
ass
Man
age
the
fish
erie
s w
ith
inth
e T
AC
Set
th
e T
AC
an
d r
evie
w t
he
leg
al m
inim
um
len
gth
to
mai
nta
in t
he
spaw
nin
gb
iom
ass
in t
he
Wes
tern
an
dE
aste
rn Z
on
e ab
ov
e 40
% a
nd
20%
of
1951
lev
els,
resp
ecti
vel
y
Ho
ld T
AC
Fo
rum
, an
nu
al r
evie
w T
AC
in
eac
hzo
ne
and
in
pu
t co
ntr
ols
, fa
cili
tate
con
sult
atio
n p
roce
ss,
enco
ura
ge
stak
eho
lder
par
tici
pat
ion
, p
rep
are
dra
ft q
uo
ta o
rder
s,fi
nal
qu
ota
ord
ers
and
qu
ota
no
tice
s
An
nu
alF
V &
pea
k b
od
ies
Wit
hin
pro
gra
mb
ud
get
Rev
iew
th
e le
gal
min
imu
mle
ng
th,
bag
lim
its,
clo
sed
seas
on
s an
d a
reas
, an
d f
ish
ing
met
ho
ds
Fac
ilit
ate
con
sult
atio
n p
roce
ss,
pre
par
e R
IS,
chan
ge
reg
ula
tio
ns
as r
equ
ired
, im
ple
men
tp
ub
lici
ty a
nd
ed
uca
tio
n s
trat
egy,
im
ple
men
tco
mp
lian
ce s
trat
egy
An
nu
alF
V &
pea
k b
od
ies
15
Min
imis
ed
isca
rdm
ort
alit
y
Qu
anti
fy d
isca
rds
of
ber
ried
,d
amag
ed a
nd
un
der
size
d r
ock
lob
ster
s an
d e
stim
ate
mo
rtal
ity
Est
abli
sh a
tar
get
ed r
esea
rch
pro
gra
m f
or
the
com
mer
cial
an
d r
ecre
atio
nal
fis
her
ies
Co
mm
ence
2004
/05
MA
FR
I24
0
Rev
iew
sea
son
al c
losu
res
and
dev
elo
p a
co
de
of
pra
ctic
e fo
rd
isca
rdin
g r
ock
lo
bst
ers
Fac
ilit
ate
con
sult
atio
n p
roce
ss a
nd
ass
ist
wit
h t
he
dev
elo
pm
ent
of
cod
es o
f p
ract
ice
Co
mp
lete
d20
05/0
6F
CC
, SIV
,F
VW
ith
in p
rog
ram
bu
dg
et
Ob
tain
so
un
dsc
ien
tifi
ck
no
wle
dg
e o
fth
e st
ock
stat
us
Co
nd
uct
res
earc
h a
nd
fis
her
ym
on
ito
rin
gR
evie
w a
nd
all
oca
te f
un
din
g f
or
rese
arch
an
dm
on
ito
rin
g,
imp
lem
ent
rese
arch
pla
n,
pre
par
e an
d d
istr
ibu
te r
epo
rts,
an
dim
ple
men
t p
ub
lici
ty a
nd
ed
uca
tio
n s
trat
egy
An
nu
alM
AF
RI
Wit
hin
pro
gra
mb
ud
get
Co
nd
uct
an
nu
al f
ish
ery
ind
epen
den
t m
on
ito
rin
gsu
rvey
s
Co
nti
nu
e fi
xed
sit
e m
on
ito
rin
g p
rog
ram
in
bo
th z
on
esA
nn
ual
MA
FR
IW
ith
in p
rog
ram
bu
dg
et
Un
der
tak
e an
nu
al s
tock
asse
ssm
ents
Ho
ld a
nn
ual
sto
ck a
sses
smen
t w
ork
sho
p,
enco
ura
ge
stak
eho
lder
par
tici
pat
ion
, p
rep
are
and
dis
trib
ute
rep
ort
s, a
nd
im
ple
men
tp
ub
lici
ty a
nd
ed
uca
tio
n s
trat
egy
An
nu
alM
AF
RI
Wit
hin
pro
gra
mb
ud
get
34
Rock Lobster Fishery Management Plan
35
Min
imis
ew
ild
life
inte
ract
ion
s
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 1
. S
ust
ain
abil
ity
of
the
Ro
ck L
ob
ster
Res
ou
rce
1b)
Mai
nta
in t
he
eco
log
ical
in
teg
rity
of
mar
ine
eco
syst
ems
Mai
nta
in o
r re
du
ce t
he
tota
ln
um
ber
of
po
ts u
sed
by t
he
flee
t. I
den
tify
an
d q
uan
tify
inte
ract
ion
s b
etw
een
fis
her
yan
d p
rote
cted
sp
ecie
s o
fw
ild
life
Mo
nit
or
po
t n
um
ber
s, i
mp
lem
ent
am
on
ito
rin
g p
rog
ram
to
co
llec
t d
ata
on
fish
ery i
nte
ract
ion
s w
ith
pro
tect
ed s
pec
ies
of
wil
dli
fe
Ho
ld a
man
agem
ent
wo
rksh
op
wit
hco
nse
rvat
ion
gro
up
s, i
nd
ust
ry,
fish
erie
so
ffic
ers
and
man
ager
s to
dev
elo
p w
ays
tore
du
ce f
ish
ery-w
ild
life
in
tera
ctio
ns.
Fac
ilit
ate
con
sult
atio
n p
roce
ss a
nd
ass
ist
wit
h t
he
dev
elo
pm
ent
of
cod
es o
f p
ract
ice
An
nu
ally
fro
m20
03/0
4
Co
mp
lete
2005
/06
FV
, F
CC
, SIV
FV
, F
CC
, SIV
, E
A
65
Ass
ess
eco
log
ical
ris
ks
of
fish
ing
an
did
enti
fy m
ajo
rth
reat
s to
ro
cklo
bst
er h
abit
ats
Co
nti
nu
e to
use
esc
ape
gap
sin
po
ts a
nd
im
ple
men
t a
byca
tch
mo
nit
ori
ng
pro
gra
m
Det
erm
ine
and
qu
anti
fy b
y-c
atch
Co
mm
ence
2003
/04
MA
FR
I10
0
Ob
tain
dat
a to
des
crib
e cr
itic
alro
ck l
ob
ster
hab
itat
s, m
on
ito
rth
e ec
olo
gic
al e
ffec
ts o
f fi
shin
gan
d o
ther
im
pac
ts o
n t
he
eco
syst
em
Co
nd
uct
hig
h p
rio
rity
res
earc
h t
o d
escr
ibe
crit
ical
hab
itat
s an
d s
pec
ies
inte
ract
ion
sC
om
ple
te20
05/0
6M
AF
RI
250
Un
der
tak
e an
eco
log
ical
ris
kas
sess
men
tH
old
hab
itat
ass
essm
ent
wo
rksh
op
s ev
ery 3
yea
rs a
nd
pre
par
e h
abit
at a
sses
smen
t re
po
rts.
Iden
tify
th
e ec
olo
gic
al r
isk
s to
ro
ck l
ob
ster
sto
cks,
hab
itat
s an
d e
cosy
stem
s
Iden
tify
eco
log
ical
in
form
atio
n g
aps
Dev
elo
p e
cosy
stem
per
form
ance
in
dic
ato
rs,
trig
ger
s an
d d
ecis
ion
ru
les
Co
mp
lete
2004
/05
Co
mm
ence
2005
/06
MA
FR
I
MA
FR
I
FV
, D
SE
60
Rock Lobster Fishery Management Plan
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 2
. R
eso
urc
e A
cces
s an
d U
tili
sati
on
2a)
Pro
mo
te c
om
mer
cial
use
fo
r ec
on
om
ic p
rosp
erit
y
Man
age
the
com
mer
cial
fish
ery w
ith
inth
e T
AC
Set
th
e T
AC
to
ach
iev
e st
able
or
incr
easi
ng
co
mm
erci
alca
tch
es,
rev
iew
LM
L,
dev
elo
pin
dic
ato
rs a
nd
ref
eren
ce p
oin
tsfo
r so
cial
an
d e
con
om
icas
pec
ts o
f th
e fi
sher
y
Ho
ld T
AC
Fo
rum
, re
vie
w T
AC
s in
eac
h z
on
ean
d i
np
ut
con
tro
ls,
faci
lita
te c
on
sult
atio
np
roce
ss,
enco
ura
ge
stak
eho
lder
par
tici
pat
ion
,p
rep
are
dra
ft q
uo
ta o
rder
s, f
inal
qu
ota
ord
ers
and
qu
ota
no
tice
s
An
nu
alF
V &
pea
k b
od
ies
Incl
ud
ed a
bo
ve
En
han
ce c
om
mer
cial
fis
hin
gac
cess
Imp
rov
e p
rov
isio
ns
for
fish
ery a
cces
s li
cen
ces
Wit
hd
raw
50
po
t li
mit
in
th
e A
po
llo
Bay
Pad
do
ck
An
nu
al
Co
mp
lete
2007
/08
FV
& R
LFA
Lh
old
ers
Wit
hin
pro
gra
mb
ud
get
Ob
tain
exp
ort
accr
edit
atio
nM
eet
Co
mm
on
wea
lth
gu
idel
ines
fo
r ec
olo
gic
ally
sust
ain
able
fis
hin
g
Ho
ld b
rief
ing
mee
tin
gs
and
pre
par
esu
bm
issi
on
to
En
vir
on
men
t A
ust
rali
a C
om
ple
te20
03/0
4F
V25
Mai
nta
inse
afo
od
sup
pli
es
Pro
mo
te t
he
rock
lo
bst
erin
du
stry
, en
sure
fo
od
hea
lth
stan
dar
ds
and
im
pro
ve
uti
lisa
tio
n a
nd
mar
ket
ing
of
by-p
rod
uct
sp
ecie
s
Dev
elo
p a
nd
im
ple
men
t th
e V
icto
rian
sea
foo
dst
rate
gy.
Im
ple
men
t ex
ten
sio
n,
edu
cati
on
an
dp
ub
lici
ty s
trat
egy
Co
mm
ence
2003
/04
FC
C,
SIV
, F
VW
ith
in p
rog
ram
bu
dg
et
En
cou
rag
eco
mp
etit
ion
an
dm
ark
et f
orc
esw
ith
in t
he
ESD
con
text
by
imp
lem
enti
ng
the
Vic
tori
anG
ov
ern
men
t’s
resp
on
se t
o N
CP
Mai
nta
in l
icen
sin
gar
ran
gem
ents
th
at a
llo
w a
cces
sli
cen
ces,
po
t en
titl
emen
ts a
nd
qu
ota
wit
hin
eac
h z
on
e to
be
ind
epen
den
tly t
rad
eab
le
Man
agem
ent
of
lice
nsi
ng
arr
ang
emen
ts,
dev
elo
pm
ent
of
arra
ng
emen
ts f
or
tem
po
rary
tran
sfer
of
po
ts
Co
mp
lete
2003
/04
FV
Wit
hin
pro
gra
mb
ud
get
Min
imis
e re
stri
ctio
ns
on
po
ten
titl
emen
tsA
lter
th
e re
gu
lati
on
s as
soci
ated
wit
h m
inim
um
and
max
imu
m p
ot
nu
mb
ers
and
rem
ov
e th
ere
gu
lati
on
s re
lati
ng
to
th
e A
po
llo
Bay
Pad
do
ck50
po
t zo
ne
by N
ov
emb
er 2
007
Co
mm
ence
2003
/04
Co
mp
lete
2006
/07
FV
5
36
Rock Lobster Fishery Management Plan
37
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 2
. R
eso
urc
e A
cces
s an
d U
tili
sati
on
2a)
Pro
mo
te c
om
mer
cial
use
fo
r ec
on
om
ic p
rosp
erit
y
Mo
nit
or
and
rev
iew
nat
ion
alan
d i
nte
rnat
ion
al r
esea
rch
fin
din
gs
Iden
tify
aqu
acu
ltu
reo
pp
ort
un
itie
s
Pre
par
e a
lite
ratu
re r
evie
w;
liai
se w
ith
RL
EA
San
d i
mp
lem
ent
pu
bli
city
an
d e
du
cati
on
stra
teg
y. E
nco
ura
ge
the
fish
ing
an
daq
uac
ult
ure
in
du
stry
to
par
tici
pat
e in
rese
arch
an
d d
evel
op
men
t
Ev
ery t
hre
ey
ears
fro
m20
02/0
3
FV
, F
RD
C,
RL
EA
S,
VA
CW
ith
in p
rog
ram
bu
dg
et
2b)
Pro
vid
e re
crea
tio
nal
op
po
rtu
nit
ies
Mai
nta
inre
sou
rce
acce
ssfo
r d
iver
s an
dn
on
-div
ers
Imp
rov
e re
crea
tio
nal
acc
ess
by r
e-b
uil
din
g t
he
sto
cks
Ho
ld T
AC
Fo
rum
, fa
cili
tate
co
nsu
ltat
ion
pro
cess
, an
d e
nco
ura
ge
stak
eho
lder
par
tici
pat
ion
An
nu
alV
RF
ish
, SD
FV
, F
VIn
clu
ded
ab
ov
e
Co
nti
nu
e to
all
ow
act
ive
recr
eati
on
al f
ish
ing
met
ho
ds
Dev
elo
p a
nd
im
ple
men
t a
cod
e o
f p
ract
ice
that
is
con
sist
ent
wit
h E
SD
On
-go
ing
FV
, V
RF
ish
, SD
FV
,F
CC
No
co
st
En
cou
rag
e n
on
-co
nsu
mp
tiv
eu
se t
hro
ug
h a
cces
s fo
r d
iver
sto
no
-tak
e ar
eas
Lia
ise
wit
h P
ark
s V
icto
ria
and
im
ple
men
tp
ub
lici
ty a
nd
ed
uca
tio
n s
trat
egy
On
-go
ing
DSE
, P
ark
sV
icto
ria,
VR
Fis
h,
SD
FV
Wit
hin
pro
gra
mb
ud
get
Man
age
the
recr
eati
on
alca
tch
wit
hin
the
TA
C
Qu
anti
fy t
he
recr
eati
on
alca
tch
Co
mm
ence
2003
/04
Co
mp
lete
2004
/05
Dev
elo
p l
icen
sin
g a
rran
gem
ents
an
d a
dat
abas
e th
at w
ill
enab
le c
ost
eff
ecti
ve
surv
eys
and
cat
ch e
stim
atio
n
FV
, V
Rfi
sh,
SD
FV
100
Un
der
tak
e an
nu
al s
urv
eys
to e
stim
ate
the
recr
eati
on
al c
atch
Co
mm
ence
2005
/06
MA
FR
I50
0
Rev
iew
th
e d
aily
bag
lim
itan
d a
dju
st t
he
leg
alm
inim
um
len
gth
, b
ag l
imit
s,cl
ose
d s
easo
ns
and
are
as,
and
fis
hin
g m
eth
od
s as
req
uir
ed
Fac
ilit
ate
con
sult
atio
n p
roce
ss,
pre
par
e R
IS,
chan
ge
reg
ula
tio
ns
as r
equ
ired
, im
ple
men
tp
ub
lici
ty a
nd
ed
uca
tio
n s
trat
egy,
im
ple
men
tco
mp
lian
ce s
trat
egy
Co
mm
ence
2007
/08
FV
, V
Rfi
sh,
SD
FV
As
abo
ve
Rock Lobster Fishery Management Plan
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 2
. R
eso
urc
e A
cces
s an
d U
tili
sati
on
2c)
Pro
vid
e o
pp
ort
un
itie
s fo
r in
dig
eno
us
com
mu
nit
ies
to a
cces
s th
e re
sou
rce
for
trad
itio
nal
pu
rpo
ses
Pro
vid
e eq
uit
able
rep
rese
nta
tio
n i
nco
-man
agem
ent
Fac
ilit
ate
con
sult
atio
n p
roce
ssA
nn
ual
FV
, F
CC
Wit
hin
pro
gra
mb
ud
get
Op
po
rtu
nit
ies
for
reso
urc
eac
cess
fo
r tr
adit
ion
al p
urp
ose
sIs
sue
Gen
eral
Fis
her
ies
Per
mit
s fo
r cu
ltu
ral
and
cer
emo
nia
l p
urp
ose
sA
nn
ual
FV
Wit
hin
pro
gra
mb
ud
get
Pro
vid
e fi
sher
ies
man
agem
ent
adv
ice
on
med
iati
on
of
nat
ive
titl
e cl
aim
sA
s re
qu
ired
FV
, F
CC
d)
En
sure
eq
uit
y f
or
futu
re g
ener
atio
ns
Re-
bu
ild
th
est
ock
s to
40%
of
the
1951
bio
mas
s
Man
age
the
com
mer
cial
an
dre
crea
tio
nal
fis
her
ies
wit
hin
TA
C a
nd
min
imis
e il
leg
alca
tch
es t
o p
rev
ent
ov
erfi
shin
g
Ho
ld T
AC
Fo
rum
, fa
cili
tate
co
nsu
ltat
ion
pro
cess
, en
cou
rag
e st
akeh
old
er p
arti
cip
atio
nA
nn
ual
FV
& p
eak
bo
die
sIn
clu
ded
ab
ov
e
Mo
nit
ori
ng
of
rock
lo
bst
er s
tock
s in
MP
As
to a
sses
s th
eir
con
trib
uti
on
in
re-
bu
ild
ing
the
reso
urc
e
An
nu
alM
AF
RI,
DSE
,P
ark
s V
icto
ria
360
Co
nse
rve
mar
ine
eco
syst
ems
Use
en
vir
on
men
tall
y b
enig
nfi
shin
g m
eth
od
s an
dm
ain
tain
eff
ecti
ve
wo
rkin
gre
lati
on
ship
s w
ith
oth
erG
ov
ern
men
t ag
enci
es
Est
abli
sh e
ffec
tiv
e co
mp
lian
ce s
trat
egie
s to
pre
ven
t fi
shin
g i
n M
PA
sA
nn
ual
DSE
, P
ark
sV
icto
ria
Wit
hin
pro
gra
mb
ud
get
Iden
tify
res
po
nsi
bil
ity a
nd
pro
cess
fo
ren
gag
ing
oth
er G
ov
ern
men
t ag
enci
es i
n t
he
dev
elo
pm
ent
and
im
ple
men
tati
on
of
new
stra
teg
ies
and
po
lici
es f
or
the
mar
ine
env
iro
nm
ent
An
nu
alF
V,
DSE
, P
ark
sV
icto
ria,
EA
38
Rock Lobster Fishery Management Plan
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 3
. E
ffec
tiv
e F
ish
ery
Man
agem
ent
3a)
Mo
nit
or
fish
erie
s p
erfo
rman
ce a
nd
im
ple
men
t o
f m
anag
emen
t ar
ran
gem
ents
Co
nti
nu
e h
igh
qu
alit
ym
on
ito
rin
g,
rese
arch
an
das
sess
men
t
Rev
iew
pri
ori
ties
an
d p
rov
ide
rese
arch
fu
nd
ing
Co
nsu
lt w
ith
th
e F
CC
su
b-c
om
mit
tee,
par
tici
pat
e in
VR
FR
AC
mee
tin
gs,
lia
ise
wit
hF
RD
C a
nd
pre
par
e re
sear
ch s
trat
egie
s an
dfu
nd
ing
pro
po
sals
An
nu
alM
AF
RI,
FC
C,
FR
DC
Wit
hin
pro
gra
mb
ud
get
Imp
rov
e d
ata
coll
ecti
on
met
ho
ds
for
by-
catc
h a
nd
by-p
rod
uct
Mo
nit
ori
ng
of
inte
ract
ion
sw
ith
mar
ine
wil
dli
fe
En
sure
th
at a
ccu
rate
rec
ord
s ar
e p
rov
ided
by
the
ind
ust
ry w
ith
in
dep
end
ent
ob
serv
atio
ns
for
val
idat
ion
Co
mm
ence
2003
/04
FV
, M
AF
RI,
RL
FAL
ho
lder
sW
ith
in p
rog
ram
bu
dg
et o
rin
clu
ded
ab
ov
e
En
cou
rag
e in
du
stry
to
par
tici
pat
e in
wil
dli
fere
sear
ch p
rog
ram
sO
n-g
oin
gM
AF
RI,
SIV
, F
CC
,R
LFA
L h
old
ers
Est
imat
e th
e il
leg
al c
atch
Co
nd
uct
res
earc
h,
anal
yse
in
form
atio
nco
llec
ted
by f
ish
erie
s o
ffic
ers,
pre
par
ere
po
rts
on
law
en
forc
emen
t ac
tiv
itie
s an
dle
vel
s o
f co
mp
lian
ce
Co
mm
ence
2003
/04
Co
mp
lete
2005
/06
FV
, M
AF
RI
20
Res
earc
h c
oll
abo
rati
on
wit
ho
ther
ag
enci
esP
rov
isio
n o
f sc
ien
tifi
c an
d p
oli
cy a
dv
ice
on
by-c
atch
sp
ecie
s, e
xo
tic
spec
ies,
en
dan
ger
edsp
ecie
s an
d m
arin
e w
ild
life
in
tera
ctio
ns
Co
mm
ence
2003
/04
Co
mp
lete
2006
/07
MA
FR
I, F
V,
EA
,in
ters
tate
fis
her
ies
agen
cies
, C
SIR
O,
Art
hu
r R
yla
hIn
stit
ute
, P
hil
lip
Isla
nd
Nat
ure
Par
k&
Un
iver
siti
es
50
Dev
elo
p t
imel
yan
d c
ost
effe
ctiv
em
anag
emen
tar
ran
gem
ents
Rev
iew
man
agem
ent
bas
edo
n t
he
sto
ck a
sses
smen
t,T
AC
Fo
rum
an
dm
anag
emen
t ac
tio
ns
Am
end
leg
isla
tio
n a
cco
rdin
g t
o t
he
RL
FM
Pan
d p
rep
are
RIS
Co
mm
ence
2003
/04
FV
100
Est
abli
sh a
rran
gem
ents
fo
r in
ter
stat
e la
nd
ing
san
d a
sso
ciat
ed m
eth
od
s fo
r co
mp
lian
ceC
om
men
ce20
03/0
4F
V
Pre
par
e q
uo
ta o
rder
s; r
enew
lic
ence
s w
ith
qu
ota
no
tice
sA
nn
ual
FV
Co
nti
nu
e to
im
pro
ve
met
ho
ds
of
rep
ort
ing
to
the
QM
SC
om
men
ce20
03/0
4F
V
39
Rock Lobster Fishery Management Plan
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 3
. E
ffec
tiv
e F
ish
ery
Man
agem
ent
3a)
Mo
nit
or
fish
erie
s p
erfo
rman
ce a
nd
im
ple
men
t o
f m
anag
emen
t ar
ran
gem
ents
Rep
ort
an
nu
ally
on
im
ple
men
tati
on
pro
gre
ssF
V &
FC
CC
om
men
ce20
03/0
4F
V,
FC
C,
SIV
,V
RF
ish
Co
mp
lete
th
e co
nsu
ltat
ion
an
d p
lan
nin
gre
vie
w p
roce
ss d
uri
ng
th
e la
st y
ear
of
the
RL
FM
P
Co
mp
lete
2007
/08
FV
, F
CC
, p
eak
bo
die
s
3b)
Pro
mo
te s
tak
eho
lder
par
tici
pat
ion
in
dec
isio
n m
akin
g
Pro
vid
eo
pp
ort
un
itie
sfo
r st
akeh
old
erp
arti
cip
atio
n
An
eff
ecti
ve
and
tra
nsp
aren
tco
-man
agem
ent
pro
cess
Pre
par
e an
an
nu
al p
rog
ress
rep
ort
on
th
eim
ple
men
tati
on
of
the
RL
FM
P, r
esea
rch
an
dm
on
ito
rin
g,
and
co
mp
lian
ce a
nd
ed
uca
tio
nst
rate
gie
s
An
nu
alF
V,
FC
C &
pea
kb
od
ies
Wit
hin
pro
gra
mb
ud
get
Inv
olv
e st
akeh
old
ers
in s
tock
ass
essm
ent
wo
rksh
op
s an
d r
esea
rch
An
nu
alM
AF
RI
& p
eak
bo
die
sW
ith
in p
rog
ram
bu
dg
et
Est
abli
sh t
he
TA
C F
oru
m w
ith
eq
uit
able
rep
rese
nta
tio
n o
f st
akeh
old
ers
An
nu
alF
V &
pea
k b
od
ies
Est
abli
sh a
n a
nn
ual
man
agem
ent
wo
rksh
op
for
ind
ust
ry,
man
ager
s an
d f
ish
erie
s o
ffic
ers
An
nu
alF
V,
SIV
En
cou
rag
e th
e fi
shin
g i
nd
ust
ry a
nd
th
ere
crea
tio
nal
sec
tor
to d
evel
op
an
d c
om
ply
wit
h c
od
es o
f p
ract
ice
that
co
mp
lem
ents
fish
ery a
nd
wil
dli
fe m
anag
emen
t
Co
mm
ence
2003
/04
Pea
k b
od
ies,
FC
C,
FV
, D
SE
Dev
elo
p t
imel
yan
d c
ost
effe
ctiv
em
anag
emen
tar
ran
gem
ents
Rev
iew
man
agem
ent
bas
edo
n t
he
sto
ck a
sses
smen
t,T
AC
Fo
rum
an
dm
anag
emen
t ac
tio
ns
Rai
seco
mm
un
ity
sup
po
rt f
or
com
pli
ance
wit
h t
he
law
and
res
earc
h
En
cou
rag
e th
e co
mm
un
ity t
ore
po
rt o
ffen
ces
See
k p
erm
issi
on
to
pu
bli
sh l
ists
of
po
ten
titl
emen
ts a
nd
qu
ota
ho
ldin
gs
Co
mm
ence
2003
/04
FV
, R
LFA
L h
old
ers
5
En
cou
rag
e p
arti
cip
atio
n i
nre
sear
ch,
sto
ck a
sses
smen
tm
eeti
ng
s, T
AC
Fo
rum
an
dm
anag
emen
t w
ork
sho
ps
Pro
vid
e in
form
atio
n o
n r
esea
rch
pro
gre
ss,
sto
ck a
sses
smen
t an
d e
ffec
tiv
ely d
isse
min
ate
rese
arch
res
ult
s
An
nu
alM
AF
RI
Wit
hin
pro
gra
mb
ud
get
40
Rock Lobster Fishery Management Plan
Tab
le 9
. (c
onti
nu
ed)
Go
als
Str
ateg
yR
equ
ired
Man
agem
ent
Act
ion
Sch
edu
leR
esp
on
sib
ilit
yE
stim
ated
Co
st&
Ob
ject
ives
x $,
000
Go
al 3
. E
ffec
tiv
e F
ish
ery
Man
agem
ent
3c)
En
sure
co
mp
lian
ce w
ith
leg
isla
tio
n
Rai
se p
ub
lic
aw
aren
ess
of
fish
erie
sre
gu
lati
on
s an
dp
enal
ties
Dev
elo
p a
nd
im
ple
men
t an
effe
ctiv
e co
mp
lian
ce s
trat
egy
Fre
qu
ent
insp
ecti
on
s o
f ca
tch
es,
reco
rds,
co
ffs
and
lan
din
gs
An
nu
alF
V60
Dev
elo
p a
nd
im
ple
men
t st
rate
gie
s to
op
tim
ise
com
pli
ance
wit
h c
om
mer
cial
an
d r
ecre
atio
nal
fish
ing
reg
ula
tio
ns
Co
mm
ence
2003
/04
FV
, F
CC
& p
eak
bo
die
s
Qu
anti
fy a
nd
cat
ego
rise
th
e il
leg
al c
atch
Co
mm
ence
2003
/04
Co
mp
lete
2005
/06
FV
, M
AF
RI
Gat
her
in
tell
igen
ce a
nd
un
der
tak
e in
ves
tig
atio
ns
An
nu
alF
V
Ap
pre
hen
d a
nd
pro
secu
te o
ffen
der
sA
nn
ual
FV
Pre
par
e an
nu
al r
epo
rts
on
co
mp
lian
ce l
evel
san
d l
aw e
nfo
rcem
ent
acti
vit
ies
An
nu
alF
V
Rev
iew
fu
nd
ing
pri
ori
ties
fo
r co
mm
un
ity
edu
cati
on
an
d c
om
pli
ance
An
nu
alF
V
Pu
bli
sh i
nfo
rmat
ion
fro
m c
ou
rt c
ases
in
vo
lvin
gfi
sher
ies
off
ence
s, c
on
vic
tio
ns
and
fin
esA
nn
ual
FV
3d)
Pro
vid
e a
pu
bli
c in
form
atio
n s
erv
ice
Rai
se p
ub
lic
aw
aren
ess
of
fish
erie
sis
sues
Dev
elo
p a
co
mm
un
icat
ion
stra
teg
yP
rod
uce
hig
h q
ual
ity i
nfo
rmat
ion
an
dd
isse
min
ate
usi
ng
th
e D
PI
web
site
an
d a
var
iety
of
oth
er m
edia
An
nu
alF
V25 20
Inte
gra
te i
nfo
rmat
ion
in
to t
each
ing
pro
gra
ms
at t
he
Mar
ine
Dis
cov
ery C
entr
eas
ap
pro
pri
ate
Co
mm
ence
2003
/04
MA
FR
I
To
tal
Ad
dit
ion
al c
ost
s fo
r im
ple
men
tati
on
ov
er5
yea
rs2,
000
41
Rock Lobster Fishery Management Plan
Appendix 1: Ministerial Guidelines
MINISTERIAL GUIDELINES PURSUANT TO SECTION 28(2) OF THE FISHERIES ACT 1995
I, Candy Broad, Minister for Energy and Resources, issue the following guidelines with respect to thepreparation of a management plan for the Victorian rock lobster fishery.
Fisheries Victoria will be responsible for the preparation of the Management Plan. The FisheriesCo-Management Council will oversee the process of preparing the Management Plan, in consultationwith the relevant Fishery Committees.
The Management Plan will be prepared in consultation with all major stakeholder groups, includingcommercial, recreational, traditional, conservation and aquaculture interests.
1. The Plan will define the process for reviewing management arrangements for the fishery includingthe total allowable catch (TAC), size limits and closed seasons.
2. The Plan will take account of Environment Australia’s guidelines for assessing the ecologicallysustainable management of fisheries.
3. The Plan will be consistent with the Victorian Government Response to the National CompetitionPolicy (NCP) Review of the Fisheries Act 1995, released in December 2001.
(a) The Plan will address the need to define a threshold limit for the total allowable catch (TAC) ineach zone above which mechanisms such as auctions, tender, or ballot should be considered forthe allocation of increases in the TAC.
(b) The Plan will address issues relating to pot limits in the rock lobster fishery under an ITQ systemand the relationship between the pot entitlement on a RLFAL and the number of ITQ units heldon that licence.
4. The Plan will review the management zones within the fishery including:
(a) The 50 pot zone within the Western Zone known as the Apollo Bay ‘Paddock’
(b) The area in the Eastern Zone known as the ‘Eastern Corridor’
(c) The possible creation of a separate ‘Far Eastern Zone’
5. The Plan will review arrangements, including compliance, relating to rock lobsters taken fromVictorian waters being landed at ports in another State.
6. The Plan will review the management arrangements for the recreational rock lobster fishery,including the use of hookah equipment for recreational purposes.
7. The Plan will review interstate and overseas policies in examining the potential opportunities foraquaculture of rock lobsters.
42
Rock Lobster Fishery Management Plan
43
Appendix 2: Fishery Strengths, Weakness,Opportunities and Threats
Strengths• Good research-based knowledge of the rock
lobster resource and fishery
• Long term stability of the resource
• Resilience of the fishery with strongcapabilities of recovery
• Rock lobster stocks are responsive to fisherymanagement measures
• Single species, well targeted fishery withminimal by-catch issues
• Harvesting techniques have negligibleenvironment threat
• High market demand – highly sought afterspecies
• Harvesting occurs in an uncontaminated and‘disease free’ environment
• High value ‘profitable’ commodity
• Strong community connections
Weakness• Limited knowledge of the recreational catch
• Lack of knowledge about the illegal catch
• Fishing capacity is excessive
• Strategy for improving compliance with thelaw is lacking
• Complicated life cycle impedes progress inaquaculture development
• Industry cohesion is lacking and zone / portassociations are ineffective
• Ineffective consultation with fishers and aperception that co-management is failing
• A lack of a strategic plan and insufficientresources
• Domestic and overseas buyers control theinternational market
• A lack of socio-economic research formanagement information
Opportunities• Science and research will increase knowledge
of the resource and marine environment
• With monitoring, MPAs could provide stockassessment opportunities
• Increased yield in the Western and EasternZone from stock rebuilding
• Increased catch rates in both zones and longterm sustainability of the industry
• Opportunities to increase production throughresource enhancement
• Development of new technologies mayincrease lobster production from aquaculturein the future
• Re-building of stakeholder confidence toimprove co-management relationships
• Secure fishing property rights that encourageindustry to participate in stock re-building
• ESD accreditation and increased exportrevenues from Asia, USA and Europe
• Local economy from rural employment,coastal infrastructure, and seafoodconsumption
Perceived threats• Fishing effort displaced by MPAs may retard
the stock re-building
• Unforseen consequence of quotas – eg sexratio, fishery structure, socio-economicfactors
• Environmental threats from degraded waterquality and reef habitat and ecosystem threatsfrom the introduction or translocation ofexotic pest species (flora and fauna)
• A lack of industry support and incentive tocomply with management measures
• Unknown and increasing impacts of illegalfishing from a lack of compliance activities
• Rising costs (labour, harbour, fuel, boats),access to bait supplies, loss of fishing skills
• NCP implementation (eg cost recovery)
• Lack of rural investment in ports,infrastructure and aquaculture development
• Effects of volatile exchange rates, exportconditions on the international marketdemand
Rock Lobster Fishery Management Plan
Appendix 3: Acronyms
BAP By-catch Action Plan
CL Carapace Length
CRLGCFC Commercial Rock Lobster and Giant Crab Fishery Committee (FCC)
DPI Department of Primary Industries
DSE Department of Sustainability and Environment
EA Environment Australia
ESD Ecologically Sustainable Development
EZ Eastern Zone
FCC Fisheries Co-Management Council
FRDC Fisheries Research and Development Corporation
FV Fisheries Victoria
LML Legal Minimum Length
ITQ Individual Transferable Quota Units
IVR Interactive Voice Response System for catch reporting
MAFRI Marine and Freshwater Resources Institute
mm Millimeters
MPA Marine Protected Area (Marine National Parks and Sanctuaries)
NCP National Competition Policy Review of the Fisheries Act 1995
QMS Quota Management System
RFL Recreational Fishing Licence
RLEAS Rock Lobster Enhancement and Aquaculture Sub-Program of FRDC
RLFAG Rock Lobster Fishery Assessment Group
RLFAL Rock Lobster Fishery Access Licence
RLFMP Rock Lobster Fishery Management Plan
RMC Recreational Marine Committee (FCC)
RIS Regulatory Impact Statement
SCUBA Self Contained Underwater Breathing Apparatus
SIV Seafood Industries Victoria
SOM Size of Maturity
SWOT Analysis of Strengths, Weaknesses, Opportunities and Threats
TAC Total Allowable Catch
TACC Total Allowable Commercial Catch
TARC Total Allowable Recreational Catch
VAC Victorian Aquaculture Council
VNPA Victorian National Parks Association
VRFish Victorian Recreational Fishing Advisory Peak Body
VRFRAC Victorian Recreational Fisheries Revenue Allocation Committee
WZ Western Zone
44
Rock Lobster Fishery Management Plan
45
Appendix 4: Definition of Terms
AquacultureFarming of aquatic plants or animals.
Available biomassThe proportion of the rock lobster stock abovethe legal size.
Biological diversity/biodiversityThe variability among living organisms inmarine and other aquatic ecosystems and theecological complexes including diversity withinspecies and between species, and diversity ofecosystems.
By-catchNon target species that are discarded from thecatch or retained for scientific purposes, and thatpart of the “catch” that is not landed but is killedas a result of interaction with fishing gear. Thisincludes discards of commercial species.
By-productSpecies that are used or landed, but are not theprime target species of the fishing operation.
CarapaceA hard bony or chitinous outer covering, such asthe fused dorsal plates of a turtle or the portionof the exoskeleton covering the head and thoraxof a crustacean.
CoffA sea cage used to store rock lobsters alive.
CommunityAssociations of plants and animals that inhabit aparticular habitat and are ecologically dependenton each other.
ConsultTo seek information or advice.
Continental shelfThe seabed from the shore to the edge of thecontinental slope.
Continental slopeThe outer edge of the continental shelf from the200m depth contour to the ocean floor.
CrayfishAlternative common name for rock lobster.
CrustaceanAnimals belonging to the class Crustacea. Theseanimals live in water, and have a hardexoskeleton and jointed limbs.
Ecologically Sustainable DevelopmentThe use of natural resources within theircapacity to sustain natural processes whilemaintaining the life-support systems of natureand ensuring that the benefit of the use to thepresent generation does not diminish thepotential to meet the needs and aspirations offuture generations.
Ecologically viable stockThe maintenance of the exploited population athigh levels of abundance designed to maintainproductivity, provide margins of safety for errorand uncertainty and maintain yields over thelong term in a way that conserves the ecologicalrole and function of the stock in the ecosystem.
EcosystemThe physical, chemical and biologicalenvironment of a community and the ecologicalinteractions between organisms and theenvironment.
EndemicAny species that is of natural origin to a location.
Exotic SpeciesAny species that is not of natural origin to alocation.
Fecund/FecundityThe number of eggs carried on setae under thetail of females in berry.
FisheryThe taking of fish described by reference tolocation, the species taken, the gear used and/orthe purpose of the fishery.
Fishery ResourcesThe stock or stocks that support the fishery.
Fishing effortThe time spent fishing with a type or unit offishing gear.
Rock Lobster Fishery Management Plan
FunctionRelationships between components of theecosystem, without which individuals could notsurvive and/or reproduce eg protection forjuveniles provided by marine plants; trophicrelationships.
HabitatThe area where an organism lives including thecomponents of the ecosystem that supports eachlife stages.
Input ControlsIndirect restraints on the catch includingregulation of the amount or type of fishing gear(eg. numbers of pots) and fishing period (eg.closed seasons).
InvertebrateAnimal lacking a backbone or spinal column.
Larvae1) The newly hatched, earliest life stage of
animals that undergo metamorphosis,differing markedly in form and appearancefrom the adult.
2) Early life stages of rock lobsters are alsoknown as phyllosomes and puerulus.
Limited Entry FisheryA fishery where the number of operators or vesselsis restricted to control the amount of fishing.
Output ControlsA direct limit on the catch by the fishery (eg. atotal allowable catch) or by an access licenceholder (eg. ITQs).
Overfishing1) Recruitment overfishing - where or when fishing
activities cause a reduction in recruitment insucceeding years and cause the mortality of toomany fish in total, too many pre-productivefish, or too many fish that have only spawneda few times. The end result is that the stockcan no longer replenish itself adequately.
2) Growth overfishing - where or when fishingactivities lead to a reduction in the size of theindividuals of a species, as a consequence ofwhich few grow to the size required for theoptimum yield to be obtained.
Phyllosome/PhyllosomaInitial stages of larval development of the rocklobster.
Precautionary ApproachUsed to implement the precautionary principle;An assessment of the risk-weightedconsequences of the various options.
Precautionary PrincipleThe lack of full scientific certainty should not beused as a reason for postponing a measure toprevent degradation of the environment wherethere are threats of serious or irreversibleenvironmental damage.
PuerulusFinal stage in the larval development of the rocklobster.
Reference PointAn indicator level of fishing (or stock size) to beused as a benchmark for assessment or decisionmaking.
Sexual MaturityThe size of onset of sexual maturity is equivalentto the size at which 50% are mature.
Spawning BiomassThe proportion of the stock above the size atonset of sexual maturity.
StakeholderAn individual or organisation with a vestedinterest or an historical association with the rocklobster resources in Victoria; The peak bodiesrecognised in the Fisheries Act 1995 represent themajority of stakeholders.
StockA reproductively isolated population or a groupof individuals in a defined spatial range with alow rate of exchange with others of the species.
SustainabilityA characteristic of a process or a state that can bemaintained indefinitely.
TAC ForumAnnual open meeting after the stock assessmentto provide recommendations for the totalallowable catch; Participants will include anindependent chairman, members of thecommercial rock lobster and giant crab fisherycommittee, representatives of peak bodies,observers and the DPI staff (policy, compliance,and research).
Total Allowable Catch (TAC)The total allowable catch of rock lobsters from allsectors.
Total Allowable Commercial Catch (TACC)The total weight of rock lobsters that may belanded within a quota period by the commercialfishery according to the final quota order.
Total Allowable Recreational Catch (TARC)The total weight of rock lobsters taken by therecreational fishery.
46
Rock Lobster Fishery Management Plan
Appendix 5: Review of Interstate andInternational Aquaculture Policies
IntroductionThere is considerable interest worldwide in rocklobster aquaculture due to the high demand andvalue of all species. Most Australian rock lobsterfisheries are fully exploited and the capacity toincrease production from capture fisheries islimited. However, there is potential to increaserock lobster production and value usingaquaculture. In a few countries, such as Vietnam,there is already considerable production andmarketing of tropical lobsters that are on-grownfrom puerulus and juveniles taken from the sea.A review of the extensive aquaculture researchon the southern rock lobster and other speciesthat has been conducted in Australia and NewZealand is outlined below.
New ZealandRock lobster aquaculture in New Zealand isbased on the collection of puerulus from the sea.The rationale behind this technique is the highmortality (75-97%) during settlement in the wild,whereas mortality in tanks can be lower than 5%with good husbandry. In order to maintainbiological neutrality with the wild fishery, threecompanies have participated in a quota buy-outscheme in return for puerulus collection licences.This entitled the companies to collect 40,000puerulus for each tonne of quota with a limit of60,000 puerulus for 1.5 tonnes of quota perlicence. Commercial success has been limited bydifficulties with puerulus collection and the costof labour.
QueenslandTropical rock lobsters (Panulirus ornatus) have ashorter larval period (4-10 months) and highergrowth rates. Research partnerships between theState and the fishing industry have begun toinvestigate the propagation and on-growing oftropical lobsters by closing the life cycle.
TasmaniaRock lobster aquaculture in Tasmania is alsobased on the collection of puerulus. Thedevelopment of conditions associated with thepermits was in full consultation with the rocklobster fishing industry. A condition of thepermit stipulates that 25% of puerulus collectedare reseeded into the wild fishery as 1 year oldjuveniles. Seven permits were issued in 2001 tocollect up to 50,000 puerulus at a cost of $5000per licence. These are issued on an annual basisand are subject to review. The intention is todevelop on-growing systems for rock lobster inanticipation of advances in hatchery technologythat may enable eggs to be hatched and on-grown. Most of the puerulus collected so farhave been used in on-growing and reseedingresearch rather than commercial production.
South AustraliaSea cages and land-based rock lobsteraquaculture activities in South Australia havebeen used for on-growing and value adding toadult wild-caught lobsters by weight gain andcolour enhancement. There is potential toachieve weight gains of around 20% by growingthe animals through the annual moult,representing a 60% return on investment.However, there were problems with mortalityand tail fan necrosis. There were also difficultiesassociated with lease renewals for cage culture atsea so the trials have moved to onshore facilities.
Western Australia and NorthernTerritoryThere is also considerable interest in on-growingof tropical lobster puerulus captured inassociation with pearl oyster culture and someinterest in on-growing puerulus of Western rocklobsters (Panulirus cygnus).
47
Rock Lobster Fishery Management Plan
Appendix 6: Research Priorities for theVictorian Rock Lobster Resource(Modified Rock Lobster Program of the FCC Research Committee 5-year Research Plan)
Future Research & Monitoring Needs Priority
Sub-program: Fisheries Assessment and Biology
1 Commercial fishery monitoring including detailed analyses of catch and Essentialeffort, on board and port sampling for size and sex composition, and tagand release
2 Cost-effective means of obtaining robust estimates of the recreational catch Essential
3 Increased industry participation in data collection High
4 Fishery-independent estimation of rock lobster abundance Essential
5 Continued development of quantitative assessment models with emphasis on Essentialrisk assessment
6 Rock lobster spatial dynamics, including variations in growth and mortality rates Medium
7 Periodic survey of technological change in the rock lobster industry and Highits influence on fishing effort estimation
8 Effective puerulus collection techniques and strategies and the use of Mediumpuerulus distribution and abundance as an index of recruitment
9 The relationship between rock lobster stock and recruitment and its Mediumincorporation into modelling and catch projection
10 Relationship between rock lobster recruitment and oceanographic conditions Medium
11 Post puerulus rock lobster dynamics, biology and habitat preferences Medium
12 Quantification of discarded and damaged rock lobsters and estimates of mortality High
Sub-program: Habitat and Ecology
13 Development of robust environmental sustainability indicators High
14 Definition and mapping of rock lobster habitats Medium
15 The interaction between rock lobsters and other species such as abalone Mediumand urchins
16 Assessment of the impact of MPAs on rock lobster sustainability and yields High
17 Assessment of by-product, by-catch and threatened, endangered and Highprotected species
48
Rock Lobster Fishery Management Plan
Future Research & Monitoring Needs Priority
Sub-program: Socio-economics and Management
18 Development of performance indicators and reference points for Highmanagement objectives
19 Changes in rock lobster fishing practices following the introduction Mediumof output controls and their impact on industry efficiency andsubsequent assessment
20 Changes in ‘structure’ of ownership/licenses – industry profile Medium
21 Estimation of illegal harvest High
22 Rock lobster management strategy evaluation modelling High
23 Economic assessment and evaluation of the economic and social aspects Mediumof restructuring
24 Determination of community attitudes and requirements for resource allocation Low
25 Periodic assessment of community awareness of Fisheries Victoria’s fisheries Lowmanagement programs and the nature of the program’s image
Aquaculture
26 Monitor the development of aquaculture techniques and assess opportunities Medium
49
Rock Lobster Fishery Management Plan
Appendix 7: References
Hobday, D.K. and Smith, D.C. (2003). RockLobster – 2001. Compiled by the Rock LobsterStock Assessment Group. Fisheries VictoriaAssessment Report No. 44 (Fisheries Victoria:East Melbourne).
Hobday, D.K. and Punt, A.E. (2001). Length-structured population modelling and riskassessment of the Victorian southern rocklobster, Jasus edwardsii, fishery. Marine andFreshwater Research 52, 1495-1507.
50
Rock Lobster Fishery Management Plan
Appendix 8: Submissions received duringthe period of public consultation
No. Name Title & Affiliation
1. John Sherwood Chair, Fisheries Co-Management Council
2. Tia Navanteri Chair, Commercial Rock Lobster and Giant Crab FisheryCommittee, Fisheries Co-Management Council
3. John Hawkins Recreational Marine Committee
4. Steve Dunn Director, NSW Fisheries
5. Victoria Wilkinson Acting Assistant Director, Sustainable Fisheries Section,Environment Australia
6. Ross McGowan Executive Director, Seafood Industry Victoria
7. Pat Washington OAM Chairman VRFish
8. Daniel Grimm Vice President – Communications, Scuba Divers Federationof Victoria
9. Chris Smyth Marine Campaign Officer, Victorian National ParksAssociation
10. Lee Everett Rock Lobster Fishery Access Licence Holder, Eastern Zone
11. Russell Barwick Rock Lobster Fishery Access Licence Holder, Eastern Zone
12. John Barrett Rock Lobster Fishery Access Licence Holder, Eastern Zone
13. John Black Rock Lobster Fishery Access Licence Holder, Eastern Zone
14. Matt Edmunds Australian Marine Ecology, Consultant
15. Ian Voight Regional Manager SW Region, Department of PrimaryIndustries
16. Margie Morrice & Peter Gill Whale Ecology Group, School of Ecology and Environment,Deakin University
51
Rock Lobster Fishery Management Plan
52
Appendix 9: Steering CommitteeMembers and Affiliations
Chair:Mr Ian CartwrightThalassa Consulting
Executive Officers:Dr Patrick CoutinMarine and Freshwater Resources Institute
Ms Majella McIntoshDPI, Fisheries Victoria
Executive AssistantsDr. James AndrewsDPI, Fisheries Victoria
Ms Serena ScopelDPI, Fisheries Victoria
Committee Members:Mr Corrie BanksFisheries Co-Management Council
Mr Russell FrostSeafood Industry Victoria
Dr Piers HartVictorian Aquaculture Council
Dr John HawkinsFisheries Co-Management Council
Mr David HobdayMarine and Freshwater Resources Institute
Mr David JohnstonSeafood Industry Victoria
Mr Peter KiddSeafood Industry Victoria
Mr Bram LePageFisheries Co-Management Council
Mr David LucasFisheries Co-Management Council
Mr Rod MacDonaldSeafood Industry Victoria
Mr David MolloyDPI, Fisheries Division
Mr Nick PolgeestSeafood Industry Victoria
Ms Lyn WarnFisheries Co-Management Council
Mr Ian WilliamsVRFish
Working Group on Stock indicators,reference points and performancemeasuresChair:Dr. David SmithMarine and Freshwater Resources Institute
Mr David HobdayMarine and Freshwater Resources Institute
Mr Bram LePageFisheries Co-Management Council
Mr David LucasFisheries Co-Management Council
Mr David MolloyDPI, Fisheries Division
Editor:Dr Patrick CoutinMarine and Freshwater Resources Institute