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IFAAC Locked Bag 39
Cloisters Square Post Office PERTH WA 6850
Ph: (08) 9482 7333 • Fax: (08) 9482 7224
Email: [email protected]
INTEGRATED FISHERIES MANAGEMENTALLOCATION REPORT - WESTERN ROCK LOBSTER RESOURCE
Prepared by the Integrated Fisheries Allocation Advisory Committee
for the Minister for Fisheries,current as at June 2006
Fisheries Management Paper No. 218FEBRUARY 2007
ISSN 0819-4327
INTEG
RATED
FISHERIES M
AN
AG
EMEN
T – ALLO
CA
TION
REPORT - W
ESTERN RO
CK LO
BSTER RESOU
RCE
INTEGRATED FISHERIES MANAGEMENT
Prepared by the Integrated Fisheries Allocation Advisory Committee for the Minister for Fisheries,
current as at June 2006
ALLOCATION REPORT – WESTERN ROCK LOBSTER RESOURCE
Fisheries Management Paper No. 218
FEBRUARY 2007
ISSN 0819-4327
Contents
WesteRn RoCK LoBsteR ResoURCe �WesteRn RoCK LoBsteR ResoURCe �
1 summaryofrECommENDaTIoNs.......................................................................................................4
1.1 Notes.............................................................................................................................................52 INTroDuCTIoN.......................................................................................................................................6
2.1 Process/consultation.....................................................................................................................62.2 Submissions...................................................................................................................................7
3 BaCKGrouND.........................................................................................................................................8
3.1 TheIntegratedFisheriesAllocationAdvisoryCommittee..................................................................83.1.1 Membership.......................................................................................................................83.1.2 ConflictofInterest..............................................................................................................83.1.3 Guidingprinciples...............................................................................................................93.1.4 TheIFAAC’sTermsofReference...........................................................................................9
3.2 Ministerialadvice.........................................................................................................................103.2.1 Customaryallocation........................................................................................................103.2.2 Formalisingcatchsharesovertheperiod1997-2001..........................................................103.2.3 Allocationtothenon-fishingsector.....................................................................................10
3.3 AdditionalGuidingPrinciplesAdoptedbytheIFAAC.......................................................................113.3.1 Datauncertainty...............................................................................................................113.3.2 Optimisingbenefittothecommunity..................................................................................12
3.4 DescriptionoftheFishery.............................................................................................................123.5 DescriptionoftheSectors............................................................................................................14
3.5.1 Customary.......................................................................................................................143.5.2 Recreational.....................................................................................................................143.5.3 Commercial......................................................................................................................15
4 CaTCHINformaTIoN............................................................................................................................16
4.1 Customary...................................................................................................................................164.2 Recreational.................................................................................................................................164.3 Commercial..................................................................................................................................174.4 Catchshares................................................................................................................................18
5 KEyaLLoCaTIoNIssuEs.....................................................................................................................20
5.1 Allocationsatthemacrolevel.......................................................................................................205.1.1 Background......................................................................................................................205.1.2 Discussion.......................................................................................................................21
5.2 Smallerscalespatialand/ortemporalallocations..........................................................................225.3 Re-allocation................................................................................................................................23
6 aLLoCaTIoNs.......................................................................................................................................24
6.1 Customary...................................................................................................................................246.2 Recreationalandcommercialsectors............................................................................................25
6.2.1 Option4..........................................................................................................................256.2.2 Options1and2...............................................................................................................266.2.3 Option3..........................................................................................................................26
6.3 Decisionrulespriorto2009/10....................................................................................................277 oTHErIssuEs......................................................................................................................................28
7.1 Monitoringallocations..................................................................................................................287.2 Managementofallocations...........................................................................................................287.3 Governanceandinstitutionalarrangements...................................................................................297.4 Broaderlegislativearrangements..................................................................................................30
8 rEfErENCEs........................................................................................................................................30
appendixa Integratedfisheriesmanagement–GovernmentPolicy1october2004...............................33appendixB IntegratedfisheriesmanagementallocationProcess...........................................................36appendixC stakeholdersubmissionsinstep1oftheIfaaCallocationProcesses................................38appendixD IfaaCConsultationProcess...................................................................................................39appendixE ListofnamesofallsubmissionsfortheWesternrockLobsterDraftallocationreport.....40appendixf Letterfromtheminister8December2004–Customaryfishing...........................................41appendixG Letterfromtheminister17may2005:Ifmprocess–Conservationsector.........................43appendixH Pro-formaletteranddatasenttostakeholders-bestestimatesofwesternrock lobsterrecreationalcatch......................................................................................................46appendixI Long-TermGrowthTrendsInrecreationalrockLobsterCatchresearchDivision, Departmentoffisheries,16June2005.................................................................................50appendixJ resultsofthe2004/05recreationalsurveys.......................................................................56appendixK Proposedconsultativecommitteemembershipandtermsofreference...............................61appendixL aBBrEVIaTIoNs......................................................................................................................62
InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt�
Therecommendationsinthisallocationreportaresummarisedbelow.Attheendofeachrecommendation,thenumberofthepagewheretherecommendationappearsinthedocumentisgiven.
Recommendation 1 Page
(a)ThatallocationintheWesternRockLobsterFisheryproceedonthebasisoftheinformationmadeavailabletotheIFAACasofMay2006,inaccordancewithGuidingPrinciple(iii)1.
(b)ThattheMinistersupportstheIFAACseekingfurthersubmissionsfromrelevantpartiesandrecommendingtotheMinisterthattheallocationsbeadjustedintheeventthatDepartmentofFisheriesinvestigationssuggestthattherelationshipbetweenthemailsurveyandthephonediarysurveyusedintheAllocationReportdoesnotreflecttherealrelationship......................................................................... 12
Recommendation 2
ThattheallocationsshouldbeoverthetotalareaoftheWestCoastRockLobsterManagedFishery.................21
Recommendation 3
Thataconsultativecommitteebeformedtodiscussandnegotiatesolutionstointer-sectoralconflictissuessuchasspatialandtemporalseparation.ThecommitteeshouldprovideareporttotheIFAAConitsrecommendationswithin12monthsofitsfirstmeeting..................................................................................23
Recommendation 4
Thatare-allocationmechanismbedevelopedandreadyforimplementationforthewesternrocklobsterresourceby2009/2010...............................................................................................................................23
Recommendation 5
ThattheCustomaryfishinginitialallocationshouldbeonetonne....................................................................24
Recommendation 6
Thattherecreationalandcommercialsector’sallocationsshouldbemadeonthepredictedproportionalcatchsharesin2009/2010(thatis4.9percentand95.1percentrespectively)..........................27
Recommendation 7
Thatsectorsshouldnotberequiredtobemanagedtotherecommendedcatchproportionspriorto2009/2010,subjecttothetotaltakenotimpactingonthesustainabilityofthestock......................................27
Recommendation 8
ThattheDepartmentofFisheriesberequestedtodevelop,inconsultationwithstakeholdersoverthenexttwoyears,thedecisionrulesframeworkformanagementofwesternrocklobsterallocations.Thisframeworkwillneedtobeoperationalby2009/2010-theseasoninwhichtheIFAAChasrecommendedallocationsbecomebinding.....................................................................................................29
Recommendation 9
ThattheExecutiveDirectoroftheDepartmentofFisheriesberequestedtodevelop,inconsultationwithstakeholders,thenecessaryinstitutionalandgovernancearrangementstogiveeffecttotheGovernment’sIFMpoliciescontainedinGuidingPrinciplesvii2andx3(seesection3.1.3).......................................................30
Recommendation 10
ThattheDepartmentofFisheriesberequestedtogiveconsiderationtothenecessarylegislativechangesandtimelinestogiveeffecttothefuturemanagementoffisheriesunderIFM...................................................30
1 summaryofrECommENDaTIoNs
1 (iii)Decisionsmustbemadeonthebestavailableinformationandwherethisinformationisuncertain,unreliable,inadequateornotavailableaprecautionaryapproach will be adopted to manage risk to fish stocks, marine communities and the environment. The absence of or uncertainity in information should not be used as a reason for delaying or failing to make a decision.
2 (vii) Appropriate management structures and processes should be introduced to manage each user group within their prescribed allocation. These should incorporate pre-determined actions that are involved if that group’s catch increases above its allocation.
3 (x) Managerial arrangement must provide users with the opportunity to access their allocation. There should be limited capacity for transferring allocations un-utilised by a sector for that sector’s use in future years, provided the outcome does not affect resource sustainability.
WesteRn RoCK LoBsteR ResoURCe �
1.1NotesThefollowingnotesprovideadditionalinformationonthebasisforsomeoftheCommittee’srecommendations.
note 1:TheIFAACnotestheMinisterforFisheries’viewthatthereshouldbeanallocationforCustomaryfishingandthatCustomaryfishingaccessrightsshouldbegivenpriorityoverallotherfishingaccess.
note 2: TheIFAACnotestheMinister’sadviceregardinganallocationfornon-extractiveusersoftheresourceand,inaccordancewiththeMinister’spositiononthismatter,itwillnotberecommendinganallocationtonon-extractiveusers.
note �: TheIFAACisprovidingadviceonallocationsofthewesternrocklobsterresourcethatiscurrentlypermittedtobetakenlegallyintheareathatexistswithintheboundariesoftheWestCoastRockLobsterManagedFisheryonly(i.e.betweenExmouthGulfandAugusta,extendingseawardsfor200nauticalmiles).
note 7: TheIFAAChasadoptedtheapproachofspecifyingreallocationbyquantityratherthanasaproportionwhereasector’sallocationislessthan0.1percentofthetotalcatch.
note 8: TheIFAACnotesthatintheeventthatimprovedestimatesoftherecreationalcatchresultinachangetothe4.9percentrecreationalallocationusedtoestimatetheCustomarytake,theremayneedtobeanadjustmenttotheallocationrecommendedforCustomaryfishing.
note 9: ThattheIFAACendorsesasastartingpointtheDepartmentofFisheries’proposedapproachtomanagingallocations,usingthefive-yearmovingaverageasaperformanceindicator.
note �: TheIFAACnotesthathistoricallytherehasbeennoaccesstowesternrocklobsterforcommercialaquaculturepurposesandarrangementsforaccessarecontainedinMinisterialPolicyGuidelineNo.20(DepartmentofFisheries,2004).
note 6:TheIFAACwillmakearecommendationtotheMinisteroninshoreresource-sharingissuesfollowingreceiptoftheconsultativecommittee’sreport.
note �: TheIFAAChasincludedrecreationalfishingbyIndigenouspeople,asdistinctfromCustomaryfishing,aspartofthebroadrecreationalallocation,consistentwiththeMinisterialadvicereferredtoinsection3.2.3.
InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt6
Thisreport,preparedbytheIntegratedFisheriesAllocationAdvisoryCommittee(IFAAC),containsthecommittee’sadviceandrecommendationstotheMinisterforFisheriesonallocationsforthewesternrocklobsterresource.Thesettingofexplicitallocationstosectors(Customary,recreationalandcommercial)isintegraltoIntegratedFisheriesManagement(IFM)inWesternAustralia.
TheIFAAC,consistentwithitstermsofreference(seesection3.1.4),commenceditsinvestigationsofallocationsfortheState’swesternrocklobsterresourceinlate2004.TheprocessusebytheIFAACtodevelopitsrecommendationsisexplainedbelow.
2.1Process/consultationTheprocesstheIFAAChasusedtopreparethisfinalreportissummariseddiagrammaticallybelow.
2 INTroDuCTIoN
Thefourstagesinvolve:
A. determiningtheneedforaformalallocationprocessinafishery.
B. developmentofanIFMreportontheresourcebytheDepartmentofFisheries.
C. theIFMallocationprocess,whichincludes:
Step1. investigationoftheallocationissue;
Step2. IFAACsettlingadraftallocationreport andreleasingitforpubliccomment;
Step3. IFAACrecommendingallocationsto theMinisterforFisheries;and
Step4. theMinisterdeterminingallocations.
D. determiningmechanismsforfutureallocationsbetweensectors.
Inthecaseofwesternrocklobster,thefirststage(pointAabove)oftheprocesswasunnecessary,astheMinisterforFisherieshadalreadyrequestedthattheIFAACprovidehimwithadviceandrecommendationsonallocations.
ThesecondstageoftheprocesswascompletedinApril2005,whentheDepartmentofFisheriesreleasedFisheriesManagementPaperNo.192,Integrated Fisheries Management Report, Western Rock Lobster Resource (FMPNo.192),(DepartmentofFisheries,2005).FMPNo.192,togetherwithappendicesHandIofthisdocument(FMPNo.218)havebeentheprincipalsourceofinformationusedbytheIFAACinitsconsiderationoftheallocationsforthewesternrocklobsterresource(seeBox1).
Duringitsinitialinvestigationofallocationissues(StageC,Step1oftheprocess–seeabove)theIFAACsoughtwrittensubmissionsfromkeystakeholdersonissuesrelatedtoallocationandprovidedanopportunityforthemtomakeaverbalpresentationtothecommittee.StakeholdersubmissionsinthisstepcanbeobtainedfromthesourcesprovidedinAppendixC.
TheIFAAC’sdraftallocationreportonwesternrocklobsterwasreleasedinOctober2005asthebasisforconsultation.TheIFAACalsoarrangedforpublicmeetingstobrieffishersandinterestedmembersof
Release of resource report by the Department of Fisheries in April 2005
Investigation of allocation issues
Release of draft allocation report by IFAAC in October 2005
Public comment period November 2005 to March 2006
Review of submissions
Final report delivered to the Minister for Fisheries
UndertheWAGovernment’spolicyonIFM(Paragraph11,AppendixA),theMinisterdeterminestheprocessandtimeframesforresolvingallocationsofeachfishresource,basedontheadviceoftheIFAAC.TheMinisterhasapprovedafour-stageIFMallocationprocessdevelopedbytheIFAAC(AppendixB).
WesteRn RoCK LoBsteR ResoURCe 7
thecommunityonthecommittee’srecommendations.TheapproachtakentoconsultationisprovidedindetailinAppendixD.
TheapproachtheIFAACtooktodealingwiththesubmissionsthatitreceivedfollowingthereleaseofitsdraftreport(StageC,Step2)isexplainedinthenextsection.
2.2submissionsTheIFAACreceived47submissionsonitsdraftallocationreportforwesternrocklobsterthatwasreleasedinOctober2005forpubliccomment.AlistofthosepeopleororganisationswhomadeasubmissionareprovidedinAppendixE.
AreferenceisonlymadetosubmissionsinthetextofthisreportwherenecessarytoprovidefurtherbackgroundtotheIFAAC’sdeliberationsorwhereitledtotheCommitteechangingarecommendationcontainedinitsdraftallocationreport.
Box 1 Fisheries Management Paper no. 192AnIFMreportforthewesternrocklobsterresource,FisheriesManagementPaperNo.192(FMPNo.192),wasreleasedbytheDepartmentofFisheriesinApril2005.ThispaperincludesareportonthesustainabilityofthefisheryandastatementonthesustainableharvestlevelasrequiredundertheWAGovernment’spolicyonIFM(seeparagraphs6and7,AppendixA)andinformationthataddressesthebroaderrequirementsforreportingunderanEcologicallySustainableDevelopment(ESD)framework.
Otherkeydocumentsonthewesternrocklobstersustainabilityincludetheannual State of the Fisheries Report andtheWestern Rock Lobster Sustainability Report preparedbytheDepartmentofFisheriesfortheCommonwealthDepartmentofEnvironmentandHeritage.TheExecutiveDirector,DepartmentofFisheries,undertheIFMpolicy,hastheresponsibilityforapprovingasustainabilityreportforeachfisherywhichincludesaclearstatementonthesustainableharvestlevelsoftheparticularfishery.
Theharvestlevelsforthewesternrocklobsterresourcearegiveninsection8.7ofFMPNo.192.TheExecutiveDirectoroftheDepartmentofFisherieshassetthe(overall)sustainableharvestlevelforwesternrocklobster(i.e.thecatchtakenbyallsectors)intherangebetween9,500tonnesand15,000tonnes.
TheobjectivesforthemanagementofthecommercialfisheryaregiveninFMPNo.192(page21).Thebiologicalobjectiveisto:
“Ensuretheabundanceofbreedinglobstersismaintainedorreturnedto,asthecasemaybe,atorabovethelevelsin1980,whichisestimatedtobeabout20percentoftheunfishedparentalbiomass.”
Inpractice,theDepartmentofFisheriesmanagestheexploitationrateofwesternrocklobsterthroughtheuseofcontrolsonfishingeffortandbiologicalcontrols(suchassizelimitsandpreventingthetakeofsetoseandtar-spottedlobsters)toensurethatthebiologicalobjectiveismetandcatchesaresustainable.Recently,adraftdecisionrulesframeworkhasbeendevelopedforthefishery,primarilyaimedatensuringthatthebreedingstockineachofthethreemanagementzonesisaboveacertainlevel.
Forthecommercialfishery,themanagementarrangementsareprovidedintheWest Coast Rock Lobster Management Plan.Asthemanagementsystemisbasedoninputcontrolsasdistinctfromoutputcontrols(quotas),thereisnoreferencetoasustainableharvestlevelinthemanagementplan.
Therecreationalrocklobsterfishingsectoriscontrolledbyregulation.Underpresentmanagement,thereisnocaponthetakeofrocklobsterbytherecreationalsector.
FurtherinformationonIFMcanbeobtainedfromtheDepartmentofFisherieson(08)94827333orbyvisitingthewebsiteat:www.fish.wa.gov.au.
Source:DepartmentofFisheries,GovernmentofWesternAustralia
InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt8
TheintroductionofIntegratedFisheriesManagement(IFM)isthemostrecentdevelopmentinthemanagementoffisheriesinWesternAustralia.IFMisaninitiativeaimedataddressingtheissueofhowfishresourcesinWesternAustraliacanbebestsharedbetweencompetinguserswithinthebroadcontextof“EcologicallySustainableDevelopment”,orESD.
Insummary,IFMinvolves:
• settingasustainableharvestlevel(SHL)ofeachresourcethatallowsforanecologicallysustainableleveloffishing;
• allocatingexplicitcatchsharesforusebyIndigenous,recreationalandcommercialfishers;
• continualmonitoringofeachsector’sharvestedcatch;
• managingeachsectorwithinitsallocatedcatchshare;and
• developingmechanismstoenablethere-allocationofcatchsharesbetweensectors.
TheWAGovernment,inits2005electioncommitments,listedwesternrocklobsterasoneofthefirstfourfishresourcestobebroughtundertheIFMframework.
3.1TheIntegratedfisheriesallocationadvisoryCommittee
TheGovernmentreleaseditsIFMPolicyinOctober2004.ThepolicyreferstotheestablishmentofanIFAACtoprovidetheMinisterforFisherieswithadviceonallocationsforfishresources(paragraph8to13).
TheMinisterforFisheriesestablishedtheIFAACunderSection42oftheFish Resources Management Act 1994(FRMA),in2004toinvestigateIFMresourceallocationissuesandmakerecommendationstohimonoptimalresourceuse.
3.1.1 membershipThemembersoftheIFAACareMrJimMcKiernan(Chair),MrNormanHalseandProfessorGeorgeKailis.
MrMcKiernanrepresentedWesternAustraliaintheAustralianParliamentfornearly18years.Duringthis
3 BaCKGrouND
timeheservedupon,andwasChairofanumberofSenateandotherParliamentarycommittees.MrMcKiernanhasconsiderableexperienceininteractingwithcommunitygroupsandstakeholders.HeisasessionalmemberoftheStateAdministrativeTribunal,aJusticeofthePeaceandamemberoftheboardoftheDisabilityServicesCommission.MrMcKiernanreplacedtheinauguralIFAACChairMrMurrayJorgensenon1March2006.
GeorgeKailisisProfessorofManagementandExecutiveDeanoftheCollegeofBusinessoftheUniversityofNotreDameandisalsoaDirectoroftheMGKailisGroup.Hehashadextensiveexperienceongovernment,scienceandindustrybodiesatastate,nationalandinternationallevel.ProfessorKailisistheChairoftheAustralianSeafoodIndustry’sNativeTitleWorkingGroup,amemberofthePearlingIndustryAdvisoryCommitteeandisontheFederalGovernment’sNationalOceansAdvisoryGroup.HehaspreviouslybeenaDirectorofboththeAustralianFisheriesManagementAuthorityandtheFisheriesResearchandDevelopmentCorporation.
MrNormanHalseisakeenrecreationalfisher,conservationistandresearcher.MrHalseworkedforWesternAustralia’sDepartmentofAgriculturefor40years,hiscareerculminatingasthatDepartment’sDirectorGeneral.HisconservationinterestsincludedservingaspastPresidentoftheConservationCouncilofWA,asChairmanoftheNationalParksandConservationAuthorityandasamemberoftheEnvironmentalProtectionAuthority.MrHalsehasastronginterestinrecreationalfishing,asdemonstratedbyhisserviceasapastChair,andcurrentboardmember,ofpeakbodyRecfishwest.
3.1.2 ConflictofInterestIfamemberhadaconflictofinterestinanymattertobeconsideredbytheIFAAC,thememberdisclosedtheinterest,thedisclosurewasrecordedintheminutesofthecommitteemeetingandthememberdidnotvoteonthematter.
ItshouldbenotedthattwomembersandthepreviousChairmanoftheIFAACholdacurrentrecreationalrocklobsterlicenceandthatProfessorGeorgeKailishasaninterestinthecommercialrocklobsterindustryasashareholderandDirectoroftheMGKailisGroup.
WesteRn RoCK LoBsteR ResoURCe 9
3.1.3 GuidingprinciplesTheMinisterprovidedtheIFAACwiththefollowingGuiding Principles and Terms of Reference.TheWAGovernmenthasadoptedtheprinciples,outlinedbelow,asthebasisforIFM(AppendixA).TheIFAACshouldensurethatanyadvicetotheMinisterforFisheriesisconsistentwiththeseprinciples:
i. FishresourcesareacommonpropertyresourcemanagedbytheGovernmentforthebenefitofpresentandfuturegenerations.
ii. Sustainabilityisparamountandecologicalrequirementsmustbeconsideredinthedeterminationofappropriateharvestlevels.
iii. Decisionsmustbemadeonthebestavailableinformationandwherethisinformationisuncertain,unreliable,inadequateornotavailable,aprecautionaryapproachwillbeadoptedtomanagerisktofishstocks,marinecommunitiesandtheenvironment.Theabsenceof,oranyuncertaintyin,informationshouldnotbeusedasareasonfordelayingorfailingtomakeadecision.
iv. Aharvestlevelthatincorporatestotalmortalityshouldbesetforeachfishery4andtheallocationdesignatedforusebyeachgroupshouldbemadeexplicit.
v. Allocationstousergroupsshouldaccountforthetotalmortalityonfishresourcesresultingfromtheactivitiesofeachgroup,includingbycatchandmortalityofreleasedfish.
vi. Thetotalharvestacrossallusergroupsshouldnotexceedtheprescribedharvestlevel.Ifthisoccurs,stepsconsistentwiththeimpactsofeachusergroupshouldbetakentoreducethetaketoalevelthatdoesnotcompromisefuturesustainability.
vii. Appropriatemanagementstructuresandprocessesshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation.Theseshouldincorporatepre-determinedactionsthatareinvokedifthatgroup’scatchincreasesaboveitsallocation.
viii. AllocationdecisionsshouldaimtoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseoffishstocksandtakeaccountofeconomic,social,culturalandenvironmentalfactors.Realistically,thiswilltake
timetoachieveandtheimplementationoftheseobjectivesislikelytobeincrementalovertime.
ix. Allocationstousergroupsshouldgenerallybemadeonaproportionalbasistoaccountfornaturalvariationsinfishpopulations.Thisgeneralprincipleshouldnot,however,precludealternativearrangementsinafisherywherepriorityaccessforaparticularusergroup(s)maybedetermined.ItshouldremainopentoGovernmentpolicytodeterminethepriorityuseoffishresourceswherethereisaclearcasetodoso.
x. Managementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation.Thereshouldbealimitedcapacityfortransferringallocationsunutilisedbyasectorforthatsector’suseinfutureyears,providedtheoutcomedoesnotaffectresourcesustainability.
3.1.4 TheIfaaC’sTermsofreferenceTakingintoaccounttheprinciplesdetailedabove,theIFAACistoinvestigatefisheriesresourceallocationissues,andprovideadviceandrecommendationstotheMinisteronmattersrelatedtooptimalresourceuse.Inparticular,theIFAACistoprovideadviceon:
i. allocationsbetweengroups(sectors)withintheharvestlimitsdeterminedforeachfishery;
ii. strategiestoovercomeallocationandaccessissuesarisingfromtemporalandspatialcompetitionforfishatalocal/regionallevel;
iii. allocationissueswithinafisheriessectorasreferredbytheMinisterforFisheries;
iv. morespecificprinciples(thandetailedabove)toprovidefurtherguidancearoundallocationdecisionsforindividualfisheries;and
v. othermattersconcerningtheintegratedmanagementoffisheriesasreferredbytheMinisterforFisheries.
Inthefirstinstance,theMinisterforFisherieshasrequestedtheIFAACtoprovideadviceandrecommendationsonallocationspertainingtotheWestCoastRockLobsterManagedFishery,AbaloneManagedFishery(withemphasisonthePerthmetropolitanfishery),andWestCoastDemersalFinfishFishery(withemphasisondhufish,baldchingroperandsnapper).
4 Fishery is defined under the FRMA as one or more stocks or parts of stocks of fish that can be treated as a unit for the purposes of conservation or management; and a class of fishing activities in respect of those stocks or parts of stocks of fish.
InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt10
TheIFMGovernmentPolicyreleasedinOctober2004(AppendixA)hasbeentheprincipalsourceofguidancefortheIFAACindevelopingitsrecommendationsonsectoralallocations.ThecurrentandpreviousMinistersforFisherieshavealsoprovidedtheIFAACwithadditionaladviceonvariousIFMissues,andIFAAChastakenthisadviceintoaccountinitsdeliberations.Theseissuesarediscussedinsection3.2.
3.2ministerialadviceInadditiontousingtheWAGovernment’spolicyonIFM(AppendixA)initsdeliberations,theIFAAChasbeenprovidedadditionalguidancebytheMinisterforFisheriesonanIndigenousallocation(AppendixF);thereferenceperiod1997–2001;andonallocationsfornon-extractiveuses(AppendixG).ThisadviceandtheIFAAC’sresponsearesummarisedbelow.
3.2.1 CustomaryallocationThethenMinisterforFisheries,KimChanceMLC,providedguidancewithrespecttotheCustomaryfishingsectorinalettertotheIFAAC(seeAppendixF).ThekeypointtheMinistermadeinhisletterwasthatheexpectedthattheIFAACwouldrecommendsomeallocationforCustomaryfishingofinshorespecies.
TheMinisteralsonotedthathesupportedrecommendation13ofthedraftAboriginalFishingStrategy,whichstates:
“Within any given fisheries allocation framework developed in Western Australia, Customary fishing access rights should be given priority over all other fishing access, including commercial and recreational fishing.”
CustomaryfishingwasdescribedbytheMinisterasthefishingactivityofIndigenouspeoplewhohavearight(inaccordancewithAboriginallawandcustoms)tofishinaCustomarymanner.HecommentedfurtherthatnotallIndigenouspeoplearepermittedtoundertakeCustomaryfishinginallareasofthestateunderAboriginallawandcustom.
note 1: TheIFAACnotestheMinisterforFisheries’viewthatthereshouldbeanallocationforCustomaryfishingandthatCustomaryfishingaccessrightsshouldbegivenpriorityoverallotherfishingaccess.
3.2.2 formalisingcatchsharesoverthe period1997-2001
Paragraph19oftheGovernment’sIFMpolicyreferstoformalisingexistingcatchsharesasabasisforfutureallocationdiscussionsusingthebestavailablecatchinformationoverthefive-yearperiodof1997-2001.Thereareanumberofissuesthatareassociatedwithusingthe1997-2001periodtoformalisecatchsharesincluding:
a. Thequalityandavailabilityofcatchdataforsomefishresourcesispoorfortheperiod1997-2001(particularlyfortherecreationalsector).
b. Astimegoeson,theperiod1997-2001willbeincreasinglyfurtherawayfromthedateofdeterminationofallocations.
c. Itisarguablethatparagraph19couldbeinterpretedtosimplymeanthatitisjustamatterofestimatingthecatchsharesovertheperiod1997-2001usingtheavailabledataandmakingdeterminationsbasedonthatcalculation.
TheIFAACconsideredtheseissuesandresolvedtoadvisetheMinisterthatthefollowingapproachshouldbeadoptedregardingparagraph19oftheIFMGovernmentpolicy:
1. TheIFAACwillmakeanassessmentof1997–2001catchshares,asabasisforfutureallocationdiscussions(Paragraph19,IFMGovernmentPolicy,AppendixA).
2. Inmakingitsrecommendationforallocation,theIFAACwillapplythebroaderprinciplesintheIFMGovernmentPolicy,inparticularParagraph5(Paragraph5containstheGuidingPrincipleswhicharereproducedatsection3.1.3).
TheMinisterapproved5
“…the IFAAC proceeding to consider allocations on the basis of its resolution.”
3.2.3 allocationtothenon-fishingsectorThecurrentMinisterforFisheries,HonJonFordJPMLC,hasadvisedtheIFAACthathedoesnotexpecttobeprovidedwitharecommendationonallocationstonon-extractiveusersoftheresource.SpecificallytheMinisterhasadvisedtheCommitteethat:
1. TheIFMinitiativewasdesignedtodetermineallocationsbetweencommercial,recreational
5 Extract from letter from the Minister to the IFAAC of 1 April 2005.
WesteRn RoCK LoBsteR ResoURCe 11
(includingcharter)andIndigenoussectorsthatareextractiveusers;and
2. HewasnotseekingarecommendationfromtheIFAAConallocationstonon-extractiveusersoftheresources(AppendixG).
note 2: TheIFAACnotestheMinister’sadviceregardinganallocationfornon-extractiveusersoftheresourceand,inaccordancewiththeMinister’spositiononthismatter,itwillnotberecommendinganallocationtonon-extractiveusers.
3.3additionalGuidingPrinciplesadoptedbytheIfaaC
TheIFAACwill,inaccordancewithitstermsofreference,bemakingrecommendationsoninitialallocationsforwesternrocklobstertoeachofthesectors.OtherallocationprinciplesthattheIFAAChasconsideredorthathavebeenbroughttotheIFAAC’sattention,inadditiontothosereferredtopreviously(sections3.1and3.2),thathaveabearingonitsdeliberationsarediscussedbelow.
TheIFAACwasguidedbythefollowingprinciplesinrelationtoconsideringallocationoptions.TheseprinciplesmayevolveovertimeintomoregenerallyacceptedprinciplesinrelationtotheIFAAC’stasks,butinthefirstinstancetheyapplyonlyforwesternrocklobster.
1. Theapproachshouldbepragmaticandincremental.
2. Therewasaneedtomakeexplicitallocations(asdistinctfrommakingageneralstatementofprincipleabouthowallocationsshouldbemade).
3. Allocationsshouldnothavetheeffectofmerelydeferringadecisionindefinitely.
4. Recommendationsthatamounttoachangetocatchsharesasassessedinthe1997–2001periodneedtobeexplainedonthebasisofthe‘GuidingPrinciples’,(particularlyGuidingPrincipleviii,seesection3.1.3).
5. Re-allocationmechanismsshouldbedevelopedwithinaspecifiedtimeframe,whichbasedonstakeholdercommentsshouldbesetatnotmorethanfiveyearsforwesternrocklobster.
6. Thatuntiltherearere-allocationmechanisms,theIFAACshouldbecautiousinmaking
recommendationsthatwouldhavetheeffectofimmediatelyandsignificantlyimpactingonasector.
3.3.1 DatauncertaintyTheIFAAChasusedtheDepartmentofFisheries’‘Best Estimates of the Western Rock Lobster Recreational Catch’(AppendixH)andthelong-termgrowthtrendsinrecreationalrocklobstercatch(AppendixI)initsconsiderationofallocations.TheIFAACrecognisesthatresearchwillcontinueonthebestmethodtoestimatetherecreationalcatchand,infuture,itispossiblethattheremaybeafurthermodificationoftherecreationalcatchestimates.
TheDepartmentofFisheriesdoesnotbelievethattheexistingrecreationalcatchestimatesshouldbereliedupontodeterminetheallocation.TheDepartmenthasrecommendedthattheinitialallocationshouldbebasedontheimproveddatagatheredin2006/07,2007/08and2008/09toestimatethecatchshares(DepartmentofFisheries’submissionontheDraftAllocationReport,DepartmentofFisherieswebsite).
TheIFAACdoesnotaccepttheDepartmentofFisheriespositionasitbelievesthatitisimportantforadecisiontobemade(seesection3.3)andthepositionisinconsistentwiththeGuidingPrinciples(iii)whichstatesinpartthat-
“The absence of, or uncertainty of in, information should not be used as a reason for delaying or failing to make a decision.”
TheIFAAChasrelieduponthemodelsinAppendixI,basedonlongtermtrendsincatchproportionsovertheperiod1986/87–2003/04,toestimatethetrendincatchshares.TheIFAAChasacceptedthismethodologyasthebasisforestimatingcatchproportions.
Therecreationalcatchestimatesusedtoestimatecatchproportionsfortheperiod1986/87to2003/04arebasedonaconversionfactorbetweenthemailandphonerecallsurveys(seesection4.2formorediscussiononconversionfactors).Ifitweredemonstratedtherewasanerrormadeinestimatingtheconversionfactor,thenthiswouldbesufficientjustificationfortheIFAACtowarranttheadjustmentoftheinitialallocationsunderIFMbecausethecatchproportionestimateswouldhavebeenincorrect.
IntheeventthattheDepartment’sinvestigationssuggestthattheconversionfactorusedinthemodels(AppendixI)needstobeupdated,theIFAAC
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NospecificmentionismadeinFMPNo.192astoculturalfactors,otherthanthoserelatingtoCustomaryfishing.
TheIFAACisoftheviewthatenvironmentalfactorsincludingallocationstonon-extractiveusersshouldlargelybetakenintoaccountwhentheExecutiveDirectoroftheDepartmentofFisheriessetsthesustainableharvestlevel.
TheIFAACrecognisesthatundertheGovernmentpolicyitmustgiveconsiderationtocommunitybenefitoptimisation.Ingeneral,thecommercialfisheryforwesternrocklobsterisaveryvaluableoneandcreateseconomicandsocialbenefitstothatsectionofthecommunityinvolvedintheindustry.Incomparison,therecreationalfisheryforwesternrocklobsterinvolvessmallereconomicactivity,butcreatesasocialbenefittotherelativelylargernumberofpeoplethatareinvolvedinthefishery.
Intheabsenceofappropriateinformation,theIFAACwasunabletocometoanyconclusiononthecomparativebenefitsofthesetwofisheriestothecommunityasawhole.
TheIFMprocessrequiresanallocationtoeachsectorsothattheresponsibilityforsustainablemanagementcanbefairlyapportionedbetweensectors.
Upuntilthepresenttime,thecommercialsectorhasbornetheprimeresponsibilityformakinganycatchadjustmentsforsustainabilitymanagement.Therecreationalcatchhasbeenincreasingoveraboutthelastfiftyyearsbutonlyreached3.9percentofthetotalcatchin2002/03.
Nevertheless,theprinciplesofIFMmakeitclearthatspecificsharesforeachsectorshouldbedetermined.
TheproposedIFMallocationisseenasanessentialfirststepthatwillfacilitateprogresstowardtheobjectivesoutlinedintheWAGovernment’spolicyonIFM.Thepolicyrecognisestheproblemofalackofinformationonsocial,economic,culturalandenvironmentalfactors(seeGuidingPrincipleviii,section3.1.3).
3.4DescriptionofthefisheryThewesternrocklobsterresourceextendsprimarilyoverthecontinentalshelfareaoffthewestcoastofWAbetweenExmouthGulfandAugusta.ExmouthGulfandAugustaarethenorthernandsouthernboundariesofthecommercialfisheryforwesternrocklobster–theWestCoastRockLobsterManagedFishery(WCRLMF).
willseekfurthersubmissionsfromrelevantpartiesandrecommendtotheMinisterthattheallocationsbeadjusted.However,intheinterestofcertaintyitshouldbenotedthattheIFAACdoesnotproposetoalterthemethodologytoincludecatchdatapost-2003/04.
Asthereisacompellingpublicinterestintheneedtoprovidelong-termcertaintyunderIFM,thisopportunityforadjustmentshouldnotcontinueindefinitelyandareasonable‘sunsetperiod’upto2009/10shouldbesufficientforthispurpose.
Recommendation 1:That allocation in the Western Rock Lobster Fishery proceed on the basis of the information made available to the IFAAC as of May 2006, in accordance with Guiding Principle (iii). That the Minister supports the IFAAC seeking further submissions from relevant parties and recommending to the Minister that the allocations be adjusted in the event that Department of Fisheries investigations suggest that the relationship between the mail survey and the phone diary survey used in the Allocation Report does not reflect the real relationship.
3.3.2 optimisingbenefittothecommunityGuidingpolicyviii(seesection3.1.3)oftheIFMGovernmentPolicystates:
“Allocation decisions should aim to achieve the optimal benefit to the Western Australian community for the use of fish stocks and take account of economic, social, cultural and environmental factors. Realistically, this will take time to achieve and the implementation of these objectives is likely to be incremental over time”.
TheIFAACnotesthatthereisnoquantitativeassessmentinFMPNo.192whichassistsindeterminingtheoptimalbenefittotheWesternAustraliancommunity,takingintoaccounteconomic,social,culturalandenvironmentalfactors.
AsocialassessmentofcoastalcommunitieshostingthewesternrocklobsterfleetwaspublishedinJanuary2006asFisheriesManagementPaperNo.211(DepartmentofFisheries,2006b).Howeverasakeyobjectiveofthestudywastoestablishadatabaseofsocialindicatorsthatwouldcontributetotheassessmentofalternativemanagementoptionsforthecommercialfishery,ithaslimitedapplicationtotheconsiderationofallocationsbetweensectors.
WesteRn RoCK LoBsteR ResoURCe 1�
Figure1 ManagementboundariesforthecommercialWestCoastRockLobsterManagedFishery.
TheWCRLMFistheareaoverwhichtheIFAACisprovidingadviceonwesternrocklobsterallocations.AlthoughwesternrocklobstersarefoundinlowerdensitiesalongthesouthcoasttotheeastofAugustaandoccasionallynorthofExmouth,theIFAAChasnotbeenrequestedtomakerecommendationsforallocationsforthatcomponentoftheresourceaspartofthisprocess.
TheWCRLMFisthemostvaluablesinglespeciesfisheryinAustralia(worthbetween$A200and$A400millionannually)withanaveragecatchofaround11,000tonnes.Tofishcommerciallyinthisfishery,apersonmustholdaWCRLMFlicence.Thenumber
oftheselicenceshasbeenlimitedsince1963,whenlicencenumbersandunitsofentitlementwerefrozen.
Thecommercialfisheryisdividedintothreezones–A,BandC(Figure1).Inanoverallsense,thefishingseasonintheWCRLMFrunsfrom15Novemberto30Junethefollowingyear,butthefishingseasonactuallydiffersfromzone-to-zone.Specifically:
• ZoneAisopenfrom15Marchto30June;
• ZoneBisopenfrom15Novemberto30Juneofthefollowingyear,withamid-seasonclosure15Januaryto10February;and
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6 Aboriginal persons are not required to hold a recreational fishing licence under section 6 of the FRMA.
• ZoneCisopenfrom25Novemberto30Juneofthefollowingyear,withathree-dayfullmoonclosureineachmonthfromFebruarytoJune.
Commercialfishersareonlypermittedtousebaitedpots,whichtheyusuallyhauldaily.Thecommercialfisheryismanagedusing‘inputcontrols’-theprimarymanagementmethodisalimitonthetotalnumberofpots,whichplacesanoverallcaponeffort.EntitlementsaretransferableunderwhatisknownasanIndividuallyTransferableEffortsystem.
HoldersofrecreationalrocklobsterlicencesarealsopermittedtotakewesternrocklobsterwithintheboundariesoftheWCRLMF.Inpractice,themajorityofrecreationalrocklobsterfishingistargetedtonear-shorewatersoflessthan18metresindepth,whereasthecommercialfisheryoperatesovertheentirearea.
Recreationalfishersmayusepotsordiveforlobsters,exceptintheAbrolhosIslands(ZoneA)wherepotsaretheonlypermissiblemethod.
note �: TheIFAACisprovidingadviceonallocationsofthewesternrocklobsterresourcethatiscurrentlypermittedtobetakenlegallyintheareathatexistswithintheboundariesoftheWestCoastRockLobsterManagedFisheryonly(i.e.betweenExmouthGulfandAugusta,extendingseawardsfor200nauticalmiles).
3.5Descriptionofthesectors
3.5.1 CustomaryTheMinisterforFisheriesusedtheterm“Customaryfishingsector”to:
“… describe the activity of Indigenous people who have a right (in accordance with Aboriginal law and customs) to fish in a Customary manner.”
Headdedtotheabovedescriptionthat:
“Customary fishing applies within a sustainable fisheries management framework to persons of Aboriginal descent; fishing in accordance with the traditional law and custom of the area being fished; and fishing for the purposes of satisfying non-commercial personal, domestic, ceremonial, educational or communal needs.”
TheNationalNativeTitleTribunal(NNTT,2005)drewattentiontothedistinctiontheDepartment
ofFisheriesmakesbetweenCustomaryfishingbyAboriginalpeopleandrecreationalfishingbyAboriginalpeople.ItnotesthatundertheDepartment’sconstructofCustomaryfishing,Aboriginalpeopleare:
“… taking marine resources for practices that reinforce cultural identity and tradition.”
andinAboriginalrecreationalfishing,theyare:“… exercising the same right as non-indigenous Australians to take fish, governed by the same laws and regulations.”
TheNNTTsuggestedthatIndigenousacceptanceofwhatcanbetakentobeanarrowdefinitionofwhatCustomaryfishingrepresentswascontingentonotherstrategiesbeingputinplacetoassistIndigenouspeopletotakeadvantageofopportunitiesinthemarinesector.TheNNTThasalsoadvisedtheIFAACthattheappropriatenessofsuchadefinitionwaspartofongoingdiscussionsandnegotiationsatanationalandstatelevel.
TheIFAACacceptstheviewthatadistinctioncanbedrawnbetweenCustomaryfishingandrecreationalfishingbyIndigenouspeople;andthatnotallIndigenousrecreationalfishersarefishingforCustomarypurposes.
note �: TheIFAAChasincludedrecreationalfishingbyIndigenouspeople,asdistinctfromCustomaryfishing,aspartofthebroadrecreationalallocation,consistentwiththeMinisterialadvicereferredtoinsection3.2.3.
3.5.2 recreationalRecreationalfishingforrocklobsterrequireseitherarocklobsterrecreationallicenceoranumbrellalicencepermittingaccesstoalllicensedrecreationalfishingactivity.6Thereisnolimittothenumberofrecreationalrocklobsterlicencesissued.
Licencesareissuedfora12-monthperiodfromthedateofissueonapplicationandpaymentof$32foraspecificrocklobsterlicenceand$75foranumbrellalicence(whichcoversalllicensedrecreationalfisheries,includingrocklobster).In2003/04,about47,345rocklobsterrecreationallicenceswereissued,with33,600(about71percent)beingused(FMPNo.192,p.55).Anyoneotherthanholdersofcommercialfishinglicencesmayapplyforarecreationalrocklobsterlicence.
WesteRn RoCK LoBsteR ResoURCe 1�
Theprimarymethodusedbyrecreationalfisherstotakewesternrocklobsterisbypots;howeverrecreationaldiverstakeaboutathirdoftherecreationalcatch.Potfishersspendmoretimefishingthandivers,althoughthecatchrateofdiversisabouttwicethatofpotting(FMPNo.192,p.55).
Charterboatoperatorsprovideaplatformforrecreationaldiverstotakerocklobsters.Charterboatsandrecreationalboatsarelimitedtoeightlobstersperlicenseeperdayandamaximumof16lobstersperboatperday.Thetakeofwesternrocklobsterfromdivecharterboatsisverysmall.
FurtherdetailsoftherecreationalrocklobsterfishingsectorareavailablefromFMPNo.192.
3.5.3CommercialTheIFAACconsidersthecommercialfishingsectortocomprisethoseoperationsthatareofacommercialnature.Forthewesternrocklobsterresource,commercialoperationsincludethewildcapturesectorandtheaquaculturesector.
3.5.3.1CommercialfishingsectorCommercialfishingforwesternrocklobsterismanagedunderThe West Coast Rock Lobster Managed Fishery Management Plan 1993(inconjunctionwiththeFish Resources Management Act 1994 andregulations),withfishershavingtoholdaWestCoastRockLobsterManagedFisheryLicence.
Therearecurrently601licensees,ofwhich545operatedtheirlicencein2004/05,and69,282unitsareallocatedtolicensees.Undercurrentmanagementarrangements,thisallocationallowsfor56,813potstobeusedbylicensees.Foreachzone,thenumbersoflicencesandpotsthatcanbeusedaregiveninTable1below.
Table1 Numbersofmanagedfisherieslicences(MFLs)andpotsbyZonefortheWestCoastRockLobsterManagedFishery.
Zone MFLs Pots
A/B 300 27,509C 301 29,304Total 601 56,813
Commercialfisherylicencesarerenewedannually,afterlicenseeshavepaidtheannualaccessfee,whichwas$134perunitforthe2004/05season.FurtherdetailsofthecommercialfishingsectorareprovidedinFMPNo.192.
3.5.3.2aquacultureTheDepartmentofFisherieshasmadenoreferenceinFMPNo.192totheaquacultureofwesternrocklobster.However,theDepartmenthasreleasedFisheriesManagementPaperNo.122Opportunities for the Holding/Fattening/Processing and Aquaculture of Western Rock Lobster (Panulirus cygnus)(DoF,1998),whichwasdesignedtoserveasapolicyframeworkfordealingwithfutureapplicationstohold/fatten/processandaquaculturewesternrocklobsterandadministerexistingpractices.
Subsequently,in2004theDepartmentofFisheriesreleasedMinisterialPolicyGuidelineNo.20Assessment of Applications for Authorisations with Regards to Rock Lobster Aquaculture(DepartmentofFisheries,2004),whichoutlinedmatterstheMinisterconsideredimportantwhenassessingapplicationsforauthorisationsandimposinglicenceconditions.
Asthemostpromisingapproachtowesternrocklobsteraquacultureisthegrow-outofpueruluscollectedfromthewild,MinisterialPolicyGuidelineNo.20madereferencetothequantityofpuerulusthatcouldbeharvestedinanyyear(maximumof300,000)andunderwhatauthority(Ministerialexemption).
ThereisnohistoryofaccesstowesternrocklobsterforacommercialaquacultureoperationinWA.Thepresentfocusofactivityisonresearchanddevelopment.TheAquacultureCouncilofWesternAustralia,initssubmissiontotheIFAAC,proposedthatallIFMfishstockallocationsneedtomakeprovisionforbothbroodandseedstock.
Asitmaybesometimebeforeaviablecommercialoperationisestablished,andthemostpromisingapproachisthroughthecollectionofpuerulus–atotallyprotectedfishundertheFRMA,theIFAAChaschosennottorecommendanallocationtotheaquaculturesector.Ifinthelongertermanaquacultureindustryemergesthatisbasedonharvestingwildanimals,thensomepolicydevelopmentwithinthecontextofIFMmayberequired.
note �:
TheIFAACnotesthathistoricallytherehasbeennoaccesstowesternrocklobsterforcommercialaquaculturepurposesandarrangementsforaccessarecontainedinMinisterialPolicyGuidelineNo.20(DepartmentofFisheries,2004).
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InaccordancewithWAGovernmentPolicyparagraph5(iii),theIFAACisobligedtousethebestavailablecatchinformationandisdirectedthatuncertaintyinrelationtothatinformationshouldnotbeusedasareasonfordelayingorfailingtomakeadecision.
TheprincipalsourceofdatathattheIFAAChasusedinconsideringitsadviceonallocationsisFMPNo.192.ImportantadditionalinformationbecameavailabletotheIFAACafterthereleaseofFMPNo.192andisgivenintheDepartmentofFisheries’paperentitledBest Estimates of the Western Rock Lobster Recreational Catch(AppendixH).TheDepartmentofFisherieshasalsoprovidedestimatesoftherecreationalproportionofthecatch,givencertainassumptions,whicharedescribedinthepaperentitledLong-Term Growth Trends In Recreational Rock Lobster Catch (AppendixI).
4.1CustomaryTheDepartmentofFisheriesdidnotprovideanyspecificinformationastoCustomaryfishing(seesection3.5.1fordefinition)forwesternrocklobsterinFMPNo.192.TheNationalNativeTitleTribunalhashelpfullyprovidedtotheIFAACaresearchreportonIndigenousfisheriesonthewestandsouth-westcoasts(Wright,2005).AnappendixtothatreportcontainedreferencestoCustomaryfishinginthesouth-westofWesternAustralia.Exceptforonesingleandrelativelyrecentreference,therewasnospecificmentionofthetakeofwesternrocklobster.
TheIFAACthereforehasnospecificinformationavailabletoitatthisstageonthecatchofwesternrocklobsterbyCustomaryfishing.
4.2recreationalTherecreationalcatchofwesternrocklobsterisdescribedinFMPNo.192,mostlyintermsofthedataobtainedfromthemailsurveysthathavebeencarriedoutfrom1986/87.
Datawereavailablefrom1986/87to2003/04atthetimetheIFAACprepareditsdraftallocationreport.However,itwasstatedinFMPNo.192thatitwasbelievedthatamoreaccurateestimateoftherecreationalcatchwasprovidedbythephonediarysurveymethod,whichhadbeencarriedoutontwo
occasions–2000/01and2001/02–andrepeatedin2004/05.
AttherequestoftheIFAAC,on10May2005theExecutiveDirectoroftheDepartmentofFisheriesprovidedthecommitteewithapaperfromtheResearchDivision–Best Estimates of the Western Rock Lobster Recreational Catch(AppendixH).Thisresearchpaperindicatedthatthemailsurveyover-estimatedtherecreationalcatchbyafactorof1.90.
Itisarguedthatthisover-estimationofthecatchinthemailsurveyresultsfromacombinationofrecallandnon-responsebias.
TheDepartmentofFisheries’positionisthat:
“… the best estimates of the recreational catch of western rock lobster over the last 17 years are obtained by using the mail survey data which has been suitably adjusted using the calculated level of bias.”
TheDepartmentprovidedtheIFAACwiththeresultsofthe2004/05recreationalcatchsurveysinJanuary2006(seeAppendixJ).Unexpectedly,theadjustmentfactorfromthemailtothephonerecallsurveyfor2004/05wasestimatedtobe3.6,givinganadjustmentfactorof2.23whencombinedwiththefactorestimatesfrom2000/01and2001/02.
Therecreationalcatchestimatewaslowerthanexpected,duetoalowerthanexpectedparticipationrateandfewerthanexpecteddaysfishedbyparticipantsinthephonediarysurvey.
Giventheresultsfromthe2004/05phonediarysurvey,theDepartmentformedtheviewthatthe1.9adjustmentfactorshouldcontinuetobeusedasaninterimarrangementtoestimatetherecreationalcatchfromthemailsurveyestimateuntilmorereliableestimatesoftherecreationalcatchwereavailable.TheDepartmentaddedthatatleastanotherfiveyearsofcomparisonswouldberequiredtoobtainareliableestimateoftheadjustmentfactor.
Further,theDepartmentadvisedinitssubmissionontheDraftAllocationReport(availablefromtheDepartmentofFisheries–seereference2006a)thattheinitialallocationshouldbebasedontheimproveddatagatheredin2006/07,2007/08and2008/09toestimatethecatchsharesforthe2009/10season.
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ForadiscussionoftheimplicationsoftheDepartment’sadviceregardingtheadjustmentfactorpleaseseesection3.3.1(ofthisdocument)thatdiscussesdatauncertainty.
Theestimatesoftherecreationalcatchbyzonefrom1996/97to2003/04usingtheadjusteddatabasedonthe1.9adjustmentfactoraregiveninTable2.
Table2 Recreationalcatchestimatesintonnes,fromeachzonewithintheWestCoastRockLobsterManagedFisheryfrom1996/97to2003/04.
SeasonZones
ZoneA/B ZoneC Total
1996/97 41 121 161
1997/98 63 192 255
1998/99 61 268 329
1999/00 53 340 392
2000/01 38 259 296
2001/02 53 234 287
2002/03 63 406 468
2003/04 59 369 428
TheIFAACnotesthatbecausethesesurveysarebasedonrandomlysamplingrecreationallicenceholders,therecreationalcatchmaybeslightlyunderestimated,asIndigenousrecreationalfishersareabletotakewesternrocklobsterwithoutholdingalicence.
4.3CommercialThecommercialcatchinformationisgiveninFMPNo.192.Thesourcesofdataforthecommercialfisheryarestatutorymonthlyreturnsthatarevalidatedagainstvoluntarydailylogbooks(filledoutbyaroundathirdofthefleet)andinformationprovidedbyrocklobsterprocessors.Thecommercialcatchbyzonefortheperiodsince1997/98isprovidedinTable3overthepage(source:FMPNo.192,Table4,p.527).
7 The catch data for 1996/97 has been added to this table for consistency and Big Bank included in the Zone B catch.
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Table3 Commercialfishingcatches,intonnes,fromeachzonewithintheWestCoastRockLobsterManagedFisheryfrom1997/98to2003/04.
SeasonZones
ZoneA ZoneB ZoneC Total
1996/97 1,824 3,619 4,458 9,901
1997/98 1,792 3,582 5,104 10,478
1998/99 1,945 4,197 6,867 13,009
1999/00 1,714 4,197 8,203 14,433
2000/01 1,672 3,504 6,089 11,273
2001/02 1,634 2,815 4,517 8,983
2002/03 1,713 3,254 6,420 11,387
2003/04 1,884 3,520 8,160 13,564
4.4CatchsharesAnindicationofthelong-termtrendintherecreationalandcommercialcatchesofwesternrocklobsterisillustratedinFigure2.Thetrendsareshownbyafive-yearmovingaveragecatchusingthedataavailablefrom1986/87,usedbytheDepartmentinestimatingcatchproportions(seeAppendixI).
Figure2illustratesthattherehasbeenalong-termincreaseinthecatchofbothsectors.Althoughtherehasbeenatrendforthepercentageofthecatchtakenbytherecreationalsectortoincreaseovertime,therehasalsobeenatrendforthecatchofthecommercialsectortoincreasebyagreateramountthanthatoftherecreationalsector.
Table4providesdataontherecreationalcatchasaproportionofthetotalcatchfortheperiodfrom1996/97–2000/01(fulldataisprovidedinAppendixH).
Table4 EstimatedrecreationalwesternrocklobstercatchasapercentageofthetotalcatchforZonesA/BandCandallzones.
SeasonRecreational%ofthecatch
ZoneA/B ZoneC ALLZones
1996/97 0.7 2.6 1.5
1997/98 1.2 3.6 2.4
1998/99 1.0 3.8 2.5
1999/00 0.8 4.0 2.6
2000/01 0.7 4.1 2.5
2001/02 1.2 4.9 3.1
2002/03 1.2 5.9 3.9
2003/04 1.1 4.3 3.1
Source:Bestestimatesofthewesternrocklobstercatch(AppendixF)
Theestimatesoftherecreationalproportionofthetotalwesternrocklobstercatchinthereferenceperiod,1996/97–2000/01(IFMGovernmentPolicy,paragraph19,AppendixA)forallzoneshasrangedbetween1.5percentand2.6percent,withanaverageof2.3percent(Table4).
Forthethreeseasonsthatdataisavailablesince2000/01,therecreationalproportionofthecatchhasincreasedtobetween3.1percentand3.9percentofthetotalcatch.
Figure2 Long-term trends in the catch taken by the commercial and recreational sectors.
Western Rock Lobster Five-Year Rolling Average Catch by Sector
0
1
2
3
4
5
6
7
8
9
10
11
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91 92 93 94 95 96 97 98 99 00 01 02 03 04
Year
Commercial Five-Year Average Catch
Recreational Five-Year Average Catch
Cat
ch ‘0
00 t
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Therecreationalproportionofthecatchispredictedtodeclinefrom3.5percentto2.6percentovertheperiod2004/05to2006/07(AppendixH)becausetherecreationalproportionofthecatchdeclinesinyearsoflowerstockavailability(source:FMPNo.192,p.64).
RecreationalfishersinZoneCtakeahigherproportionofthetotalcatchthaninZonesA/Bcombined.Onaverage,overtheperiod1996/97to2000/01recreationalfisherstook3.6percentofthecatchinZoneC,comparedwith0.9percentinZonesA/B.Thisistobeexpected,giventhatthemajorityofthepopulationlivesinthePerthmetropolitanarea(withinZoneC).
Therecreationalproportionofthecatchispredictedtodeclinefrom5.4percentto4.7percentinZoneCovertheperiod2004/05to2006/07(AppendixH),butitisexpectedtoberelativelystableatbetween0.9percentand1.0percentinZonesA/B.
TheIFAACnotesthatmostoftherecreationalfishingactivityforwesternrocklobsterisinwatersshallowerthan18metres.Incorporatingthecorrectionfactorforthephonediarymethod,therecreationalcatchhasbeenestimatedtobeapproximately13percent8ofthecommercialcatchinthePerthmetropolitanandRottnestIslandareas,increasingto37percent9ofthecommercialcatchinwatersshallowerthan18metres(FMPNo.192,p.59).
8 The figure was reported as 25 per cent in FMP No. 192 - the IFAAC applied the adjustment factor of 1.9 from Appendix H to arrive at the 13 per cent estimate.9 The figure was reported as 70 per cent in FMP No. 192 - the IFAAC applied the adjustment factor of 1.9 from Appendix H to arrive at the 37 per cent estimate.
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Indeterminingitsrecommendationsontheallocations,theIFAACwasmindfulthatitsrecommendationsarebeingmadeforthepurposesoutlinedinsection3.1andnotforsustainabilitypurposes,thelaterforwhichtheMinisterforFisheriesandtheExecutiveDirectorhaveresponsibilityundertheFish Resources Management Act 1994(FRMA).
Asaprecursortoprovidingitsadviceontheactualallocations,theIFAACconsideredthatitneededtoresolvethefollowingkeyissues:
• thespatialscaleofallocationsatthemacrolevel(i.e.shouldtheallocationsbebymajorregions-northandsouth-orovertheentirefishery?);
• whetherthereshouldtherebesmallerscalespatialand/ortemporalallocations;and
• theintroductionofare-allocationmechanism.
Eachkeyissueisdiscussedbelow.
5.1allocationsatthemacrolevelA‘whole-of-fishery’allocationversusanallocationfortworegions(northandsouth)wasamajorconsiderationfortheIFAACthatrequiredresolutionpriortomovingforwardtoconsidertheactualallocations.
5.1.1 BackgroundCurrently,thecommercialfisheryisdividedintothreezonesformanagementpurposes:ZonesAandB(inthenorth)andC(inthesouth).Commercialfishingentitlementsarefixedforeachzone.
Untilrecentlythesamemanagementruleshaveappliedtoallthreezones,apartfromafewexceptionssuchasthemaximumsizeruleforwesternrocklobsters(105mminthenorthand110mminthesouth).
Themanagementarrangementshavechangedrecently,withtheintroductionofcommercialmanagementpackagesaimedatreducingfishingeffortforsustainabilityreasonsbyabout15percentinthenorthandfivepercentinthesouth.Thesemanagementchangesrepresentasignificantshift
inmanagementdirection–movingfromawhole-of-fisherybasistomanagementonazonalbasis.
Therecreationalfisheryforwesternrocklobsterisnotmanagedbyzone,withthesamerecreationalrulesapplyingacrossthewholeofthefisherywiththeexceptionmentionedaboveofthemaximumsizerule.Therecreationalsectorwasnotrequiredtoreduceitsfishingeffortwhentherecentreductionstothecommercialsector’sfishingeffortwereintroduced.
Ofthetotalrecreationalcatch(acrossthewholeWestCoastRockLobsterManagedFishery)usingthe2003/04catchestimates(Table2,section4.2),14percentistakeninthenorthand86percentistakeninthesouth.
ItcouldbeexpectedthatwithagrowingpopulationinthePerthmetropolitanarea,theproportionoftherecreational‘take’inthesouthwillbegreaterthan86percentinthefuture.ThemetropolitancoastfromMandurahtoTwoRockswouldappeartobestrepresentthemajorwesternrocklobsterrecreationalfishery.
TheestablishmentofaPerthmetropolitanzone,whichwouldsuittheneedsoftherecreationalsector,wasconsideredandrejectedbecausetherewasalackofinformationtodeterminethepotentialimpacts.
IntheIFAAC’sview,atthemacroscale,thepragmaticoptionsaretoeithersetarecreationalallocationforthewholeoftheWestCoastRockLobsterManagedFisheryortoprovideforallocationsfortworegions(i.e.byanorthernregion(ZonesA/B)andasouthernregion(ZoneC)).
Underanoverallwhole-of-fisheryoption,thecommercialsectorwouldcontinuetobemanagedonazonalbasiswhiletherecreationalsectorwouldbemanagedonwhole-of-fisherybasis.Thisarrangementwouldnotprecludedifferentmanagementarrangementsapplyingbetweencommercialfishingzonesfortherecreationalsectorasitdoesnow(e.g.thedifferingmaximumsize),butthecatchtakenbyeachsectorshouldbemanagedtotheoverallallocation.Someconsiderationwouldneedtobegiventotheimpacttheproposedmanagementchangescouldhaveoncatchshares.
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Underthecatchshares-by-regionoption,thecommercialandrecreationalsectorwouldbeallocateddifferentproportionsinthenorthernregion(ZonesA/B)andthesouthernregion(ZoneC)oftheWestCoastRockLobsterManagedFishery.
5.1.2 DiscussionInmovingtoamorecomplicatedmanagementmodel(tworegions)forrecreationalfishing,theIFAACneededtobeconvincedthattheadvantagesweresufficienttooutweighthedisadvantages.Adiscussionoftheadvantagesanddisadvantagesofthetwoapproachesandotherrelevantmattersonthisissueareprovidedbelow.
Someoftheadvantagesofallocationsbytworegionswerethatit:
• limitstheimpactthatmanagementactioninoneregionwouldhaveonrecreationalfishersintheotherregion;
• ismorelikelytofacilitatethedevelopmentandimplementationofre-allocationmechanismsovertime;and
• complementsthedraftdecisionrulesframeworkforthefishery,whichrelatestomanagingthebreedingstockaboveacertainlevelineachzone.
Someofthedisadvantagesofallocationsbytworegionswere:
• Inthelongterm,recreationallicensingmaybecomemorecomplicated(e.g.differentbaglimitsandfishingperiodsmayapplytodifferentzones).
• Thecostofestimatingtherecreationalcatchwouldincreasesubstantiallyifapreciseestimateoftherecreationalcatchwasrequiredforthenorthernregion.
• Theadditionofnewlayersofcomplexityinmanagementandcompliancethatcurrentlydonotexistintherecreationalsector.
TheIFAACalsotookintoaccountthefollowingfactors:
• Therewassupportforatwo-regionmodelfromthecommercialsector,butmixedviewsfromtherecreationalsector.TheDepartmentofFisheriessupportedasingleregionapproach(DepartmentofFisheries2006a).
• Awhole-of-fisheryallocationprovidestheflexibilitytochangetoregionalallocationsinthefutureifnecessary.
Anadvantagethatatwo-regionallocationmayhaveoverawhole-of-fisheryallocationwhenamarketmechanismforre-allocationisimplementedisthatthetradeswouldberestrictedtotheentitlementheldwithintheappropriateregion.TheIFAACconsideredthisissueandformedaviewthat,onbalance,awhole-of-fisheryallocationapproachwouldbepreferable,withtheprovisothatthetradingofallocationsfortherecreationalsectorresultedin:
• tangibleanddirectbenefitsintheareasofgreatestconcernandalinkedmechanismforspatialtrade-offagainstpurchases;and
• trade-offsthatdealtwiththesignificantareasofresourcesharingconflicts.
Inpractice,iftherecreationalsectorwasnegotiatingoveratradewiththecommercialsectoritwouldbeunlikelytoagreetoatradeunlessitcouldbeassuredthatthebenefitsofatransactionwouldflowtoitssector.
Insummary,theIFAACresolvedtorecommendanallocationovertheentirefishery,giventhe:
• benefitsofatwo-regionmodelwerenotconsideredtobesufficientlysignificantatthisstage;
• provisothattherecreationalsectorrealisesthedirectbenefitsofanytradingofallocations;and
• flexibilitytochangetoregionalallocationsinthefutureremainedanoptionunderanallocationovertheentirefishery.
TheIFAACacknowledgesthatneitherawhole-of-fisheryallocationoranallocationbyregionadequatelyaddressestheissuesoftemporalandspatialcompetitionatalocallevel.
Recommendation 2
That the allocations should be over the total area of the West Coast Rock Lobster Managed Fishery.
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5.2smallerscalespatialand/ortemporalallocations
Underitstermsofreference,theIFAACisrequiredto,amongotherthings,provideadviceonstrategiestoovercomeallocationandaccessissuesarisingfromtemporalandspatialcompetitionforfishatalocal/regionallevel(seesection3.1.4).
TheIFAAChasbeenadvisedbymajorstakeholdersthattheissueofspatialandtemporalcompetitioninZoneCforinshore‘white’lobstersduringNovember/Januaryisamajorresource-sharingconflict.Recfishwestprovidedthefollowingdescriptionoftheissue:
“…that the resource-sharing issue with western rock lobsters is essentially an inshore, C Zone, ‘whites’ problem.”
“…explicit directions to accommodate the inshore take of the less valuable ‘whites’ in the early part of Zone C by spatial management. … Recognition must be given to the importance of recreational fishing near major access points, especially in Zone C.”
TheWesternRockLobsterCouncil(WRLC)identified:
“… significant spatial conflict during the ‘whites’ run in C Zone…”
Oneobviousstrategytoovercomecompetitionorthistypeofresource-sharingissueistousespatialandtemporalclosurestoeliminatetheconflict,giventhatvirtuallyallrecreationallobsterfishingiscarriedoutinonlyasmallpartoftheareafishedbythecommercialindustryandinrelativelyshortperiodsoftime.
Recreationallobsterfishingiscarriedoutinwaterlessthan18metresdeepandisconcentratedonthePerthmetropolitancoast,withsomemuchsmallerconcentrationsofactivityoccurringatJurienBayandGeraldton(Fig.18,FMPNo.192,p61).
Ifrecreationalfisherscontinuetooperateinasmallpartofthefishedarea,theycanbeexpectedtoincreasinglycompetewithoneanothersothatevenoveralongperiodtherecreationalcatchislikelytoplateau.
Giventheveryseasonalnatureandlimitedareaofrecreationalfishingforrocklobsters,itmaybepossibletointroducespatialclosuresforlimitedperiodsoftime.Thisapproachmayrequiretherecreationalsectortointroduceothermanagement
measurestorestricttheirfishingeffortifitprovedthattheywereexceedingtheirallocation.
TheDepartmentofFisheries’adviceisthatspatialandtemporalsolutionswouldbecostlytoimplementfromacomplianceviewpoint,giventhatcommercialwesternrocklobsterfishingvesselscurrentlyarenotrequiredtohaveaVesselMonitoringSystem(VMS)installedandgenerallythereisalackofglobalpositioningsystem(GPS)devicesonrecreationalfishingvessels.TheIFAACalsonotedthattherehasnotbeenathoroughanalysisofthemanagementimplicationsandcompliancecostsforaclosuresofthiskind.
Giventheadvicefromstakeholdergroupsonthesourceofconflictandthesubmissionsfromtherecreationalsectoronproposalstocreaterecreationalpriorityfishingareas,theIFAAChasformedaviewthatagenuineresourcesharingconflictdoesexistinsomeinshoreareasofZoneC,intheNovembertoJanuaryperiod.TheIFAACbelievestheremaybemeritinsupportingrecreationalfishingpriorityareascreatedbyspatialortemporalexclusionsofcommercialfishers.However,FMPNo.192doesnotprovidesufficientinformationtoassesstheimpactofintroducingtheseclosures.
TheIFAACbelievesthatoncethecommercialandrecreationalsectorsareassuredoftheirsharesoftheresource,thereisamuchbetterchanceofresolvingconflictssuchasoverthe“whitesrun”throughnegotiation.
Giventheimportanceofthisissueandthatthereisnotcurrentlyasuitableinter-sectoralforumforrecreationalandcommercialfishers(seealsoRecommendation9),theIFAACbelievesthatitshouldprovideadviceontheprocessandtimeframesfornegotiations.Accordingly,theIFAACrecommendstheestablishmentofaconsultativecommitteetoreporttoit,within12monthsofitsfirstmeeting,onitsrecommendationsforaddressingresourcesharingconflictsbyusingspatialandtemporalarrangements.TheproposedtermsofreferenceandmembershipofthecommitteearecontainedinAppendixK.
TheIFAAC,afterconsiderationofthereportfromtheproposedconsultativecommittee,willmakearecommendationtotheMinisteronhowtoaddressthisresourceaccessconflictthroughspatialandtemporalseparationofthesectors.
WesteRn RoCK LoBsteR ResoURCe 2�
Recommendation 3
That a consultative committee be formed to discuss and negotiate solutions to inter-sectoral conflict issues, such as spatial and temporal separation. The committee should provide a report to the IFAAC on its recommendations within 12 months of its first meeting.
note 6:
TheIFAACwillmakearecommendationtotheMinisteroninshoreresourcesharingissuesfollowingreceiptoftheconsultativecommittee’sreport.
5.3re-allocationTheestablishmentofare-allocationmechanismisintegraltotheimplementationofIFMandtotheachievementofoptimalbenefitstotheWesternAustraliancommunity.Are-allocationmechanismisnecessarybecause,overtime,optimalallocationswillvary.Intheabsenceofare-allocationmechanismunderparagraph18oftheWAGovernment’spolicyonIFM,sectorswouldberequiredtobemanagedwithintheirallocatedcatchshares.
TheIFMGovernmentPolicy(paragraph16,AppendixA)statesthat:
“Priority will be given to investigating the potential development of a market-based system to achieve re-allocations, along with due consideration of social equity considerations, as soon as practical …”
There-allocationmechanismisreferredtointheIFAAC’sAdditionalGuidingPrinciples5and6,whicharereproducedbelowforconvenience:
“5. That until there are re-allocation mechanisms, the IFAAC should be cautious in making recommendations that would have the effect of immediately and significantly impacting on a sector (principle 5).
6. Re-allocation mechanisms should be developed within a specified timeframe, which based on stakeholder comments should be set at not more than five years for western rock lobster (principle 6).”
Amarket-basedmechanismhasapplicationintheWesternRockLobsterFisherybecausethereisalreadyanestablishedmarketforthesaleorleasingofcatchingrightsinthefishery.Anothercharacteristic
oftherocklobsterfishery,whichmakesitapossiblecandidateforamarket-basedsystem,isthattherecreationalsectoralreadyhasaformallicensesysteminplace,whichwouldenablecontributionstobecollectedtowardsanappropriatefund.
Forexample,thewaysuchasystemcouldworkisthatifafterallocationsareimplementedtherecreationalsectorhadexceededitsIFMallocation,thentheGovernmentonbehalfoftherecreationalsectorcouldgointothemarketandtradeforcommercialpotentitlementsequivalenttowhatwasrequiredtoallowforadditionalrecreationalcatchshare.Thesystemwouldworkinreverseifthecommercialsectorexceededitsallocationofthecatchshare.
Therecreationalsectorintheirsubmissionsraisedsignificantobjectiontomeetingthetotalcostofpurchasingadditionalsharesoftherocklobsterresourcethatwererequiredonlybyanincreaseintherecreationalfishingpopulation.
TheDepartmenthasinformedtheIFAACthatare-allocationmechanismcouldbeintroducedby2009/10,whichiswithinthefive-yearperiodspecifiedbyIFAACinitsguidingprinciples.
Toensurethatare-allocationmechanismisintroducedwithinthistimeframe,theIFAACwillbecooperatingwiththeDepartmentofFisheriestodevelop,asamatterofpriority,are-allocationmechanismforconsiderationbytheMinister.
Recommendation 4
That a re-allocation mechanism be developed and ready for implementation for the western rock lobster resource by 2009/2010.
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6.1CustomaryTheIFAAChastakenapragmaticapproachtodeterminingtheallocationforCustomaryfishing,giventheadvicefromtheMinisterforFisheries(AppendixF)andthepolicyof,ononehand,makingapriorityallocationand,ontheother,thelackofdataavailableontheCustomaryfishingforwesternrocklobster.
TheDepartmentofFisherieshasestimatedtheproportionofIndigenouspeoplethatresideincoastalareasbetweenKalbarriandAugustatobeabout1.7percentofthetotalcoastalpopulation.AssumingthattheIndigenouspopulationparticipatesinrecreationalfishingatthesamerateasthenon-Indigenouspopulation,thetakebyIndigenouspeoplewouldbeequivalenttoabout1.7percentoftherecreationaltake.
Partofthis1.7percentwouldbeattributedtorecreationalfishingbyAboriginalpeople,whilepartwouldbeattributedtoCustomaryfishingbyAboriginalpeople.Thepartofthe1.7percentattributedtoCustomaryfishingbyAboriginalpeopleisestimatedbytheDepartmentofFisheriestobeapproximately10percent,basedondepartmentalofficers’discussionswithstakeholders.Inotherwords,itisassumedthat10percentofrocklobsterfishingbyAboriginalpeopleisforCustomarypurposes,whiletheother90percentisforrecreationalpurposes.
Anallocationof0.17percentoftherecreationalproportionofthecatchwouldbeequivalentto0.0085percentofthetotalcatch,assuminganallocationof4.9percenttotherecreationalsectorunderoptionthreeofTable5.
TheIFAACbelievesthatnotwithstandingGuidingPrincipleix(seesection3.1.3),asthisisaverysmallpercentageofthewesternrocklobstercatch,thecommitteeshouldadoptapragmaticapproachtosettingtheallocationforCustomaryfishing,inaccordancewiththeIFAAC’sAdditionalGuidingPrinciple1(seesection3.3).
TheprinciplethattheIFAAChasadoptedtodealwiththismatteristomakeallocationsasaquantityof(the)catchwherethetakeislessthan0.1percentoftheproportionofthetotalcatch.Inthiscase,asthecatchfluctuatesconsiderablyforwesternrocklobster,theaveragecatchoverthelast10yearsof11,500
tonneswasconsideredtobeappropriatetouseasabasistocalculatetheCustomaryallocation.
Usingthismethod,anallocationofonetonne(0.0085percentof11,500tonnes)wouldbetheinitialpriorityCustomaryallocationfortheIndigenoussector.ThiswillbesubjecttoreviewifmoreinformationbecomesavailableonCustomaryfishingbyIndigenouspeople.
Intheabsenceofbetterevidence,theIFAACconsidersthiswouldbeareasonablestartingpointforaninitialallocationforCustomarypurposesforwesternrocklobster.TheIFAACacknowledgesthatotherspeciesmaybeattributedadifferentproportionforCustomaryfishing.Inmakingajudgmentaboutthisproportion,inthiscasetheIFAAC’sfocuswasonestablishinganallocationinthefirstinstance,whichcouldbevalidatedovertimeandreadjustedifnecessary.
ItisimportanttonotethatastheCustomaryfishingallocation(asrecommended)isaseparateandverysmallallocationthatiscurrentlyunreported,itwillhavenosubstantiveimpactontheinitialallocationsofthewesternrocklobsterresourcetothecommercialandrecreationalfishingsectors.
note 7:
TheIFAAChasadoptedtheapproachofspecifyingtheallocationbyquantityratherthanasaproportionwhereasector’sallocationislessthan0.1percentofthetotalcatch.
note 8:
TheIFAACnotesthatintheeventthatimprovedestimatesoftherecreationalcatchresultinachangetothe4.9percentrecreationalallocationusedtoestimatetheCustomarytake,theremayneedtobeanadjustmenttotheallocationrecommendedforCustomaryfishing.
Recommendation 5
That the Customary fishing initial allocation should be one tonne.
6aLLoCaTIoNs
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6.2recreationalandcommercialsectorsTheIFAACdetailedfouroptions10initsdraftallocationreportthatcouldbeusedtodeterminetheallocationsforthecommercialandrecreationalsectors.Thefouroptionswere:
Option 1: Allocations at the average proportion over the period 1997– 2001.
Option 2: Allocations at the average proportion of the last three seasons (status quo).
Option 3: Allocations at the proportion it is expected to be in 2009/10, allowing for growth in line with the long-term trend in recreational catch share.
Option 4: Allocations at a proportion which will allow for long-term growth in population and estimated growth in recreational activity.
Asummaryoftherecreationalproportionalallocationsthatwouldresultfromeachofthefouroptionsunderawhole-of-fisheryallocationisprovidedinTable5below.
Thesubmissionsreceivedonthedraftallocationreportprovidedamixedresponseontheirpreferredoption.RecreationalfishersalmostuniversallysupportedOption4.TheWesternRockLobsterCouncilstronglysupportedOption1,whilsttheZoneCProfessionalFishermen’sAssociationpreferredOption2.SomestakeholdersagreedwithOption3withprovisos.
TheIFAAChasconsideredthesubmissionsonthedraftallocationreportandprovidesthefollowingdiscussiononeachoftheoptionsandthemeritsofimplementingeachoptioninthecontextoftheWAGovernment’spolicyonIFMandtheIFAAC’sGuidingPrinciples.
6.2.1 option4Option4isbasedontheprinciplethattherecreationalsector’scatchproportionshouldcontinuetogrowuntilitreachesalimit.Recfishwestproposedthattherecreationalsectorbeallowedtogrowincrementallyuntilitreachesaproportionaltakeof
twiceitscurrent‘real’catchshareoritsprojectedcatchesafter20years,whicheveristhegreatest,toaccommodatethenaturalgrowthintherecreationalsector.
BasedonthelatestinformationoncatchesfromtheDepartmentofFisheries,anoverallallocationofeightpercentofthesustainableharvestlevelfortheresourcewouldbeequivalenttoabouttwicetherecreationalsector’scurrentcatchshare.
Recfishwestproposedthatshouldrecreationalcatchesnotmeettheselevels,thecommercialsectorwouldnotbeexpectedtopayacontributionforthe‘share’itwouldhavecaught.
TheRFAC,initssubmissiononthedraftallocationreport,hasnowproposedahigherinitialallocationof20percentforrecreationalfishersacrossthefishery.
Anumberofsubmissionsfromtherecreationalsectoronthedraftallocationreportsupportedtheprincipleofcontinuedgrowthintherecreationalsectoruptoacertainlimit.Thelimitsproposedvaried,butrangedupto20percent.
TheRecfishwestandRFACpropositionsandothersubmissionsfromtherecreationalsectorwould,ifadopted,amounttoasignificantchangetocatchsharescomparedwiththe1996/97-2000/01catchshares.
TheIFAACindevelopingitsadditionalguidingprinciple3–“Allocations should not have the effect of merely deferring a decision indefinitely”(section3.3)-wasmindfulthatanytargetneededtobearealisticandmeaningful,sothattheallocationswouldrepresentthelikelysectorshareswithinaspecifiedtimeframe(say,fiveyears).Ifthetargetwassettoohigh,oncurrentgrowthprojections,theimplementationofIFMwouldinfactbedeferredformanyyears.
TheGovernmentpolicyispredicatedondetermininganallocation,monitoringthetakeofthesectorsandmanagingeachsector’stakewithintheirallocationinsuchawaythatwillnotcompromisefuturesustainabilityofthefishery.Settingtheallocationfor
RecreationalSector’sProportionoftheCatch(%)Option1
(96/97–00/01)WAFIC&WRLC
Option2(01/02–03/04)
Option3(2009/10)
Option4Recfishwest(20years)
RFAC11
2.3 3.4 4.9 8 10-20
10 A detailed description of the four options is contained in the draft allocation report.11 RFAC in its initial submission proposed a 10 per cent proportional allocation, but in its submission on the draft allocation report proposed a 20 per cent
proportional allocation.
Table5 Therecreationalsector’swhole-of-fisheryproportionalallocationforeachallocationoptiondiscussedinthedraftallocationreport.
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therecreationalsectorwellabovethecurrentlevelswouldbeinconsistentwithIFAAC’sguidingprinciple3andtheWAGovernment’sIFMpolicycommitmenttotheimplementationofanintegratedmanagementsystemforthesustainablemanagementofWesternAustralia’sfisheries.ThereforetheIFAACbelievesthatOption4shouldnotbeadoptedorrecommended.
6.2.2 options1and2TheIFAACbelievesthatstrictlyadheringtoimplementingparagraph19(i.e.Option1)oftheGovernmentPolicytodeterminetheallocationsistakinganarrowerviewthanthemorepragmaticapproachtheIFAACproposedtotheMinisterasappropriate.TheMinisterhasendorsedtheIFAACtakingabroaderviewtoconsideringallocations,asoutlinedinsection3.2.2.
OneoftheconsiderationsthattheIFAACbelievesisimportantistheprinciple(section3.3)ofendeavouringtoavoidrecommendationsthatmayhavetheeffectofimpactingonasectorbeforetheoptionofare-allocationmechanismbecomesavailable.
BothOptions1and2aresimilarinthattheycouldhaveanimmediateimpactonmanagementofasector,albeitthatOption1couldimpactontherecreationalsectorandOption2couldimpactonthecommercialsector,intheshortterm.
TheintroductionofOption1in2006/07mayrequireimmediatemanagementinterventionwellaheadofthedevelopmentandagreementbetweenthesectorsandGovernmentonare-allocationmechanismthatisproposedforintroductionin2009/10.Therecreationalsectormayberequiredtosignificantlyreduceitstake,giventhatgrowthinparticipationinrecreationalrocklobsterfishinghasresultedintherecreationalproportionofthecatchnowbeingestimatedtobesignificantlyhigher12thanduringthe1997–2001period.
Similarly,theintroductionofOption2in2006/07mayresult,intheshortterm,intheneedformanagementinterventiontoreducethecommercialsector’sfishingeffortbecauseitisexpectedtoexceeditsprojectedallocation.Inthemediumterm,itmayrequiremanagementoftherecreationalsectortoreduceitscatch.
Theimmediateintroductionofallocationswillnotallowsufficienttimefor“theimplementationofappropriatemanagementstructuresandprocesses”tomanagetherecreationalsectorwithinitsallocationandthe
developmentofdecisionsrules(seeRecommendation9andGovernmentPolicyparagraph5vii).
Onbalance,theIFAAC’sviewisthatadoptingOption1or2isinconsistentwiththeIFAAC’sguideline6.
6.2.3 option3Option3istheIFAAC’spreferredoption.
TheIFAAChasproposedproportionalallocationsfor2009/10asthisisthefirstyearinwhichare-allocationmechanismcouldbereasonablyexpectedtobeavailable.Thistimeframeiswithinthefive-yeartimeframespecifiedbytheIFAAC(seesection3.3,point6).
TheIFAACformedaviewthatOption3representsapragmaticandincrementalapproach,inaccordancewithGovernmentPolicyandtheadditionalguidingprinciplesadoptedbytheIFAAC(section3.3).
TheadoptionofOption3providesforanallocationthatwillbebindinginareasonabletimeframe,whileallowingatransitionperiodthatshouldnotsignificantlydisadvantageeithersectorandallowsfor:
• thedevelopmentandimplementationofare-allocationmechanism;
• theformationofaconsultativecommitteetodiscussandnegotiatesolutionstointer-sectoralconflictissues,suchasspatialandtemporalseparation(Recommendation3);and
• theestablishmentofsuitablegovernanceandinstitutionalarrangements(Recommendation9).
BasedontheanalysisprovidedbytheDepartmentofFisheries(AppendixI),theproportionoftherecreationalsector’scatchin2009/10wouldbe4.9percent.Fortheperiodupto2009/10,thecommercialfisheryshouldnotbedisadvantagedastherecreationalproportionofthetotalcatchispredictedtodecreaseforthenexttwoseasons.
Fortheperiodafter2009/10,thecommercialsector,althoughdisadvantagedtotheextentthattheproportionallocatedtoitislessthanitscatchshareovertheperiod1997–2001,hasanoffsettingbenefitarisingfromtheincreasedcertaintyandqualityoftheirrightsthroughtheproperimplementationofIFM.
Therecommendedarrangementsarebasedonallowingareasonabletimeforimplementationofanappropriatemarket-basedre-allocationsystem(2009/10).Itshouldbenotedthatintheabsence
12 3.0 per cent in 2004/05 compared with 2.3 per cent over the period 1997-2001.
WesteRn RoCK LoBsteR ResoURCe 27
ofactionbeingtakenforre-allocationunderamarketmechanism,theneachsectorwouldbeexpectedtobemanagedwithinitscatchshareinaccordancewithGuidingPrinciplevii(seesection3.1.3).
Insummary,althoughtherecreationalsectorwillhavetheirtotalcatchexplicitlyrestrictedforthefirsttime,theywillnotsufferanyimmediatemanagementconsequencesandtherewouldbeamechanismforincreasingtheirshareconsistentwithIFMthroughamechanismtobedevelopedby2009/10.
Inrelationtothecommercialsector,theyalsoshouldnotsuffermanagementconsequencesasaresultoftheallocationrecommendationuntil2009/10attheearliest.Inaddition,althoughthereisadifferencebetweenrelativecatchsharesin1997–2001tothatprojectedin2009/10,thereisanoffsettingbenefittothecommercialsectorfromimprovedcertainty,includingtheirshareoftheresourcearisingfromtherestrictionplacedongrowthoftherecreationalcatchbytheimplementationofIFM.
Outofthefouroptionspresentedinthedraftallocationreport,theIFAACbelievesthat,onbalance,Option3is,asdiscussedabove,morecloselyalignedtoGovernmentpolicyandtotheIFAAC’sguidingprinciplesthantheotheroptions.
Recommendation 6
That the recreational and commercial sector’s allocations should be made on the predicted proportional catch shares in 2009/10 ( that is 4.9 per cent and 95.1 per cent respectively).
6.3Decisionrulespriorto2009/10TheIFAACnotesthatmanagementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation(GuidingPrinciple,x-seesection3.1.3)andthesearrangementsshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation(GuidingPrinciplevii,seesection3.1.3).
Until2009/10,theExecutiveDirectoroftheDepartmentofFisheriesshouldmanagethesectorsaccordingtobroadIFMprinciples,inparticulartoparagraph18oftheWAGovernment’spolicyonIFM.
Providedusershavetheopportunitytoaccesstheirallocationpriorto2009/10,theIFAACdoesnotexpectthatsectorsshouldberequiredtobemanagedtotherecommendedlevelspriorto2009/10,subjecttothetotaltakenotimpactingonthesustainabilityofthestock.
Thismaymeanthatthecommercialsectorwilltakegreaterthan95.1percentofthetotalcatch,inlinewiththeDepartmentofFisheries’predictionthattherecreationalproportionofthecatchwilldeclineoverthenexttwoseasons(AppendixH).ItistheIFAAC’sviewthatallowingthecommercialsectortotakegreaterthan95.1percentintheperiodupto2009/10wouldoffsettosomeextenttheimpactofsettingtheproportionatthepredictedlevelin2009/10.
Recommendation 7
That sectors should not be required to be managed to the recommended catch proportions prior to 2009/10, subject to the total take not impacting on the sustainability of the stock.
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7.1monitoringallocationsThemainissuewithmonitoringallocationsisobtaininganaccurateestimateoftherecreationalcatch.ThemethodusedbytheDepartmentofFisheriesinvolvessurveyingrecreationalfisheriesbymailattheendoftheseasonandthenadjustingtheestimateobtainedusingtheresultsfromatelephonediarysurveyoffewerpeople.
TheIFAACrecognisesthatthelowerpercentageoftherocklobstercatchtakenbyrecreationalfishers,basedontheadjusteddata,maysurprisesomestakeholdersbecausetheinformationthathasbeenuseduntilveryrecently(March,2005)isfromtheunadjustedmailsurveyresults(seesection4.2).
Afewyearsago,themailsurveyresultswereactuallyadjustedupwardsinatleastsomepresentations,sothatevenhigherpercentageswouldhavebeenquotedattimes.Whenallocationsarebeingconsidered,theIFAACbelievesitisimportantthatstakeholdershaveclarityaboutthesematters.
Atthisstage,thetelephonediarysurveymethodisbelievedtoprovidethemostaccurateestimateoftherecreationalcatch.However,theIFAACacknowledgesthatmoreaccuratemethodsmaybedevelopedovertime.Shouldthisbethecase,theIFAACbelievesthestakeholdersshouldbeconsultedpriortotheadoptionofnewsurveytechniques.
TheDepartmentofFisherieshasadvisedtheIFAACthatitwillimprovetheestimatesoftherecreationalcatchbasedonthecurrentsurveymethodologyandimplementfieldvalidationtocheckforbiasoftheestimates.TheIFAACunderstandstheimportanceofhavingaccurateestimatesoftherecreationalcatchinordertomonitorcatchshares,andappreciatestheDepartmentofFisheriesundertakingtoimprovetherecreationalcatchestimates.
7.2managementofallocationsThetworelevantGovernmentprinciplesregardingmanagementofallocationsare:
GuidingPrinciplevii(seesection3.1.3)statesthat:
“Appropriate management structures should be introduced to manage each user group within
their prescribed allocation. These should include predetermined actions that are invoked if that group’s catch increases above its allocation.”
andGuidingPrinciplex(seesection3.1.3)statesthat:
“Management arrangements must provide users with the opportunity to access their allocation…”
TheIFAACacknowledgesthatundertheIFMGuidingPrinciples,ongoingmanagementofallocationsistheroleoftheMinisterandtheDepartmentofFisheries.However,stakeholdersintheirsubmissionsonallocationhaveemphasisedtheimportancetothemofclarityastofuturearrangements.
TheDepartmentofFisherieshasreferredtothedifficultyofmanagingallocationsonayear-to-yearbasis.Forexample,therecanbesignificantvariationsincatchsharesfromyear-to-year,duetochangingabundancefromrecruitmentorresultingfromtransientchangesinthespatialdistributionofeffortofthesectorsacrossthefishery.
TheDepartmenthasproposedthatallocationmanagementdecisionrulesbedevelopedbyexpandingthedecisionrulesframeworkthathasbeendevelopedforsustainabilityinthecommercialsector.Afive-yearmovingaveragehasbeenrecommendedastheperformanceindicatorforcatchshares,withaonepercent(oftheoverallsustainableharvestlevel)tolerancearoundthecatchshares.
TheIFAACinterpretsthistomeanthat,inanyoneyear,ifasector’scatchshareiswithinplusorminusonepercentofitsallocation,thentypicallyremedialactionwouldnotberequired.
TheIFAACgenerallyendorsestheDepartmentofFisheries’proposedapproach.Initsview,itwasneverintendedthatresourcere-allocationwouldoccurona‘realtime’basis,butthattheprocessesadoptedwoulddealwithtrendsintheutilisationoffishresourcesovertime,reflectinglong-termandenduringchangesnotshort-termfluctuations.Itisrecognisedthatitwillbeasignificantchallengetofindasetofprinciples/performanceindicatorsthatincorporatethebestandlatestinformationinrelationtoyear-to-yearvariationincatches,whilesettinginplacelonger-termdecisionrulesandadjustmentprocesses.
7 otHeR IssUes
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AlthoughtheIFAACsupportstheuseofafive-yearmovingaverageandaonepercenttolerance,theIFAACalsorecommendsthatabroaderdecisionrulesframeworkformanagingallocationsbedevelopedinconsultationwithstakeholdersoverthenexttwoyears.Thisframeworkwillneedtobeoperationalby2009/10-theseasonthattheIFAAChasrecommendedallocationsbecomebinding.
Inmakingthisrecommendation,theIFAACnotesthatareliableestimateofcatchshareswillberequiredforeachseasoncommencingwiththe2005/06season,sothatbytheendofthe2009/10seasonarobustfive-yearmovingaverageisavailabletodecisionmakers.
Recommendation 8
That the Department of Fisheries be requested to develop, in consultation with stakeholders over the next two years, the decision rules framework for management of western rock lobster allocations. This framework will need to be operational by 2009/10 - the season in which the IFAAC has recommended allocations become binding.
note 9:
ThattheIFAACendorsesasastartingpointtheDepartmentofFisheries’proposedapproachtomanagingallocations,usingthefive-yearmovingaverageasaperformanceindicator.
7.3Governanceandinstitutionalarrangements
Initsdraftallocationreport,theIFAACrecommended(Recommendation2)that:
“the western rock lobster management advisory process be reformed so as to encourage all sectors (commercial, recreational and Indigenous) to discuss inter-sectoral issues … as well as resolving intra-sectoral management issues.”
TheneedtohaveappropriatemanagementstructuresinplacetotakeadvantageoftheopportunitiesthatIFMwillprovidetosectorsisgenerallysupportedbyallmajorstakeholders.
OneofthepositiveoutcomesexpectedtoflowfromthedeterminationofallocationsundertheIFMprocessisthateachsectorwilltakeagreaterresponsibilityformaximisingthebenefitfromtheirallocation.
Therecreationalsectorinparticularmayalsobeexpectedtobenefitfrommoredirectinvolvementinthemanagementofitsallocation.AppropriatestructuresalsoneedtobeinplaceinrelationtoCustomaryparticipation.
Theexistingmanagementstructuresarenotthemostappropriateforthesepurposesandthereisaneedtochangethecurrentinstitutionalarrangements.
TheDepartmentofFisherieshasproposedthatthereisaneedforabodytoprovideadviceonawhole-of-fisherybasistotheMinisterandhasproposedarestructureofRLIACanditsmembershipforthispurpose.Sectorsarealsoexpectedtotakemoreresponsibilityforprovidingadviceonthemanagementneedsoftheirparticularsector.
TheIFAACsupportsachangetotheinstitutionalarrangementsandhasprovidedapreliminaryviewbelowonthetypeofstructurethatcouldoperateunderanIFMframework.
TheIFAACproposestheestablishmentofa‘WesternRockLobsterManagementAdvisoryCommittee’(abodyproposedtoreplaceRLIAC).Thisbodywouldbesupportedbytwosectorsubcommittees-a‘WesternRockLobsterRecreationalAdvisorySubcommittee’(WRLRASC)anda‘WesternRockLobsterCommercialAdvisorySubcommittee’(WRLCASC).Thesectoradvisorysubcommitteeswouldberepresentative-basedandincluderepresentativesfrombodiessuchasRecfishwestandtheWesternRockLobsterCouncil.
Intheeventthatanissuerelatestoonesectoronly,theMinistermaychoosetoseekadvicedirectlyfromoneofthesubcommittees.Forexample,advicecouldbesoughtdirectlyfromtheWRLCASConcostrecoveryormarketing.
TheIFAACinsection6.3hasmadearecommendationonthemanagementofallocationsupto2009/10,butacknowledgesthatfurtherpolicydevelopmentisrequiredandthatthemanagementoftheallocationsbeyond2009/10requiresconsiderablepolicydevelopment.
MINISTER
WRLMINISTERIALADVISORYCOMMITTEE
WRLCASCWRLRASC
InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt�0
TheIFAACrecommendsthattheDepartmentofFisheries,inconsultationwithstakeholders,commencedevelopingthenecessaryinstitutionalandgovernancearrangementsthatwilldealeffectivelywiththeseimportantmattersassoonaspossible.
Recommendation 9
That the Executive Director of the Department of Fisheries be requested to develop, in consultation with stakeholders, the necessary institutional and governance arrangements to give effect to the Government’s IFM policies contained in Guiding Principles vii and x (see section 3.1.3).
7.4BroaderlegislativearrangementsTheWesternAustralianFishingIndustryCouncil(WAFIC),initsearliersubmissiontotheIFAAC,arguedthatincorporationofdecisionsaroundallocationsandpoliciesadoptedbyGovernmentthroughlegislationisextremelyimportant,asitdemonstratestothecommunitythattheGovernmentisseriousaboutthisinitiative.Further,theWAFICarguesthattheimplementationofallocationdecisionsinlegislationwillalsoprovideaddedsecurityandconfidencetosectorsabouttheiraccesstotheirshareoftheresourceandproposestheintroductionofaMinisterialPolicyGuideline.
ThisviewisconsistentwiththeIFMGovernmentPolicy(paragraph9,AppendixA),whichstatesthat:
“AllocationprocesseswillbedevelopedinthecontextofpolicyguidelinessetbytheMinister.Inthelongerterm,itmaybedesirabletoamendtheFRMAtoincorporateallocationprocesses”.
TheIFAACconsidersthatthisisamatterthatisalreadycoveredbytheWAGovernment’spolicyonIFM,whichwasreleasedin2004,andthetimingofthedevelopmentofaMinisterialPolicyGuidelineisamatterfortheMinisterforFisheries.
Recommendation 10
That the Department of Fisheries be requested to give consideration to the necessary legislative changes and timelines to give effect to the future management of fisheries under IFM.
8 rEfErENCEs
DepartmentofFisheries,2004,Assessment of Applications for Authorisations with Regards to Rock Lobster Aquaculture, MinisterialPolicyGuidelineNo.20,Perth,WesternAustralia,p.9.
DepartmentofFisheries,2005,Integrated Fisheries Management Report Western Rock Lobster Resource,FisheriesManagementPaperNo.192,Perth,WesternAustralia,p.101.
DepartmentofFisheries,2006a,Submission to IFAAC on the Draft Allocation Report for the Western Rock Lobster Resource,[online],FisheriesOccasionalPaperNo.36,DepartmentofFisheries,http://www.fish.wa.gov.au/docs/op/op036/index.php?0602,[Dateaccessed9June2006].
DepartmentofFisheries,2006b,A Social Assessment of Coastal Communities Hosting the Western Rock Lobster Fishing Fleet,FisheriesManagementPaperNo.211,Perth,WesternAustralia,p.73.
FisheriesWA,1998,Opportunities for the Holding/Fattening/Processing and Aquaculture of Western Rock Lobster (Panulirus cygnus),FisheriesManagementPaperNo.122,Perth,WesternAustralia,p.22.
NationalNativeTitleTribunal,2005,National Indigenous Fishing Technical Working Group,website:www.nntt.gov.au,AccessedJune,2005.
Wright,G,2005,An Overview of the Evidence for Indigenous Fisheries on the West and South Coasts of Western Australia,NationalNativeTitleTribunal,ResearchReport,p.11.
WesteRn RoCK LoBsteR ResoURCe �1
�2 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
APPenDICes
WesteRn RoCK LoBsteR ResoURCe ��
GeneRAL1. TheGovernmentiscommittedtothe
implementationofanintegratedmanagementsystemforthesustainablemanagementofWesternAustralia’sfisheries.
2. Theintegratedmanagementsystemwillbeopenandtransparent,accessibleandinclusiveandflexible.
InFoRMAtIon ReqUIReMents3. Thedevelopmentandfundingofanappropriate
researchandmonitoringprogramencompassingallusergroupsisessentialtoprovidethenecessaryinformationforsustainabilityandallocationissuestobeaddressedunderanintegratedframework.Thisprogramwillbeprogressivelyphasedinoveranumberofyearsasmorefisheriesarebroughtundertheintegratedmanagementframework.
4. TheDepartmentofFisherieswill,inconsultationwithusergroups,investigateoptionsforstandardisingcatchinformationbetweensectors,notingthatthescalefordatacollectionandreportingmustbeappropriateforeachparticularfishery.
GUIDInG PRInCIPLes FoR MAnAGeMent5. Thefollowingprincipleswillbeadopted(by
incorporatingthemintoeitherlegislation,MinisterialPolicyGuidelinesorpolicyasappropriate)asthebasisforintegratedfisheriesmanagement.
i) FishresourcesareacommonpropertyresourcemanagedbytheGovernmentforthebenefitofpresentandfuturegenerations.
ii) Sustainabilityisparamountandecologicalrequirementsmustbeconsideredinthedeterminationofappropriateharvestlevels.
iii) Decisionsmustbemadeonbestavailableinformationandwherethisinformationis
��
uncertain,unreliable,inadequateornotavailable,aprecautionaryapproachwillbeadoptedtomanagerisktofishstocks,marinecommunitiesandtheenvironment.
Theabsenceof,oranyuncertaintyin,informationshouldnotbeusedasareasonfordelayingorfailingtomakeadecision.
iv) Aharvestlevelthatincorporatestotalmortalityshouldbesetforeachfishery1andtheallocationdesignatedfortheusebyeachgroupshouldbemadeexplicit.
v) Allocationstousergroupsshouldaccountforthetotalmortalityonfishresourcesresultingfromtheactivitiesofeachgroup,includingbycatchandmortalityofreleasedfish.
vi) Thetotalharvestacrossallusergroupsshouldnotexceedtheprescribedharvestlevel.Ifthisoccurs,stepsconsistentwiththeimpactsofeachusergroupshouldbetakentoreducethetaketoalevelthatdoesnotcompromisefuturesustainability.
vii) Appropriatemanagementstructuresandprocessesshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation.Theseshouldincorporatepredeterminedactionsthatareinvokedifthatgroup’scatchincreasesaboveitsallocation.
viii) AllocationdecisionsshouldaimtoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseoffishstocksandtakeaccountofeconomicsocial,culturalandenvironmentalfactors.Realistically,thiswilltaketimetoachieveandtheimplementationoftheseobjectivesislikelytobeincrementalovertime.
ix) Allocationstousergroupsshouldgenerallybemadeonaproportionalbasistoaccountfornaturalvariationsinfishpopulations.
Thisgeneralprincipleshouldnot,however,precludealternativearrangementsina
1 Fishery is defined under the FRMA as one or more stocks or parts of stocks of fish that can be treated as a unit for the purposes of conservation or management; and a class of fishing activities in respect of those stocks or parts of stocks of fish.
aPPENDIXa
INTEGraTEDfIsHErIEsmaNaGEmENT–GovErNmENTPoLICy1oCToBEr2004
�� InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
fisherywherepriorityaccessforaparticularusergroup(s)maybedetermined.Itshouldremainopentogovernmentpolicytodeterminethepriorityuseoffishresourceswherethereisaclearcasetodoso.
x) Managementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation.Thereshouldbealimitedcapacityfortransferringallocationsunutilisedbyasectorforthatsector’suseinfutureyears,providedtheoutcomedoesnotaffectresourcesustainability.
Morespecificprinciplestoprovidefurtherguidancearoundallocationdecisionsmayalsobeestablishedforindividualfisheries.
sUstAInABLe HARvest LeveLs6. Asustainabilityreportwillbepreparedforeach
fisheryinaccordancewiththe‘Policy for the implementation of ecologically sustainable development for fisheries and aquaculture in Western Australia’.
7. TheExecutiveDirector,DepartmentofFisheries,willapproveasustainabilityreportforeachfishery,whichincludesaclearstatementontheharvestlevel.
ALLoCAtIon PRoCesses8. AnIntegratedFisheriesAllocationAdvisory
Committeewillbeestablishedunders42oftheFish Resources Management Act 1994(FRMA)toinvestigateresourceallocationissuesandmakerecommendationsonoptimalresourceusetotheMinisterforFisheriesincluding:
i) allocationsbetweengroupswithintheharvestlimitsdeterminedforeachfishery;
ii) strategiestoovercomeallocationandaccessissuesarisingfromtemporalandspatialcompetitionatalocal/regionallevel;
iii) allocationissueswithinasectorasreferredbytheMinisterforFisheries;
iv) morespecificprinciplestoprovidefurtherguidancearoundallocationdecisionsforindividualfisheries;and
v) othermattersconcerningtheintegratedmanagementoffisheriesasreferredbytheMinisterforFisheries.
9. AllocationprocesseswillbedevelopedinthecontextofpolicyguidelinessetbytheMinister.Inthelonger-term,itmaybedesirabletoamendtheFRMAtoincorporateallocationprocesses.
10. TheIntegratedFisheriesAllocationAdvisoryCommitteewillgenerallycompriseachairpersonandtwomembers.
11. TheMinisterwillberesponsiblefordeterminingtheprocessandtimeframesforresolvingallocationissuesineachfisherybasedonadvicefromtheIntegratedFisheriesAllocationAdvisoryCommittee.
12. TheMinisterwillprovideastatementofdecisiononannouncementofhisdeterminationinanallocationmatter.
13. TheMinistermaymakepublictheCommittee’sreportatthesametimehisstatementofdecisionisreleased.
CoMPensAtIon14. Whereare-allocationofresourcesfromone
usergrouptoanotherresultsindemonstrablefinanciallosstoalicensedfisherman,inprinciplethereshouldbeconsiderationofcompensation.Compensationmaytakevariousformsanddesirablydoesnotnecessarilyinvolvethepaymentofmoney.TheDepartmentofFisherieswillreviewthescopeoftheFisheries Adjustment Scheme Act 1987toensureitcontainssufficientflexibilitytoencompasstheseprinciplesunderanintegratedmanagementsystem.
15. Casesforcompensationshouldbeassessedontheirmerits.
16. Prioritywillbegiventoinvestigatingthepotentialdevelopmentofmarket-basedsystemstoachievere-allocations,alongwithdueconsiderationofsocialequityconsiderations,assoonaspractical.Clearly,considerationofanymarket-basedsystemwillbebasedonitsmerit.
17. Nocompensationshouldbepayablewhereadjustmentsaremadeforsustainabilityreasons.
WesteRn RoCK LoBsteR ResoURCe ��
eFFeCtIve seCtoRAL MAnAGeMent18. TheGovernmentiscommittedtointroducing
moreeffectivemanagementacrossallfisheries.Theimplementationofmoreeffectivesectoralarrangementsinwhichthecatchofasectorcanbecontainedisanessentialfirststepintheintroductionofanewintegratedmanagementsystemwithinwhichallocationissuesmaybeaddressed.Intheinterim,eachsectorwillcontinuetobemanagedresponsiblywithincurrentcatchrangesandshouldthecatchofasectoralterdisproportionatelytothatofothersectors,theMinisterwilltakeappropriatemanagementactiontoaddressthis.
19. Itisimportanttoformaliseexistingsharesasabasisforfutureallocationsdiscussions.Thesewillbeformalisedonthebasisofproportionalcatchsharesusingthebestavailableinformationduringthefive-yearperiodfrom1997to2001.
20. RecreationalfishingplansfortheWestCoastandGascoyneregionswillbeimplementedwitheffectfrom1October2003toprovideamoreeffectiveframeworkformanagingrecreationalfisheries.AreviewoftheNorthandSouthCoastregionsisalsounderway.
21. Areviewofthecommercialwetlinefisheryhascommenced.Managementoutcomesmustinvolvetheremovalofexcessfishingcapacityfromthefisheryandtheestablishmentofadedicatedcommercialfisherywithclearentrycriteriaandanappropriatelimitoncatchineachbioregion.
FUnDInG22. Theinitiativecanbecommencedwithin
the2004/05budget;howeverresourcingrequirementswillincreaseasmorefisheriesarebroughtunderaintegratedframework.FuturefundingwillbeconsideredthroughtheGovernmentbudgetprocess.
23. TheGovernmentwillconsiderseekinggreatercontributionsfromallusersovertimecorrespondingtogrowingcertainty/securityoveraccessasallocationmodelsareimplementedineachfishery.
�6 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
TheDepartment,indevelopingthesereports,willconsultwiththekeystakeholdergroups.TheIFMreportwillbeapprovedbytheExecutiveDirector,DepartmentofFisheriesandwillincludeaclearstatementofthesustainableharvestlevel.
C. tHe InteGRAteD FIsHeRIes ALLoCAtIon PRoCess.
step 1 – Investigation of the allocation issueIFAACwillreceivetheIFMReportandthenconductpreliminaryinvestigationsintotheallocationissueby:
• seekingsubmissionsandconsultingwiththepeakstakeholdergroupssuchtheWesternAustralianFishingIndustryCouncil,Recfishwest,ConservationCouncilofWesternAustraliaandbodiesrepresentingIndigenousinterests;
• drawingontheknowledge,data,technicalmaterialandexperienceavailablewithregardtotheparticularfisherybothfromtheDepartmentofFisheriesandasappropriatefromothersources;and
• identifyingareasofagreementanddisagreementbetweenthedifferentparties.
Aspartofitsconsiderations,IFAACmayrequesttheDepartmentofFisheriestofurtheradviseontheecological,economicandsocialimpactsofanyproposedchangeinresourceallocation.Followingtheseactions,IFAACwillformaliseitsinitialposition.
step 2 – IFAAC settles draft allocation report and releases for public comment.OnceIFAAChascometoaninitialpositionwithregardtoallocation,thiswillbedocumented,alongwiththereasonsforitsconclusions,andwillrecommendtotheMinisterthatitbereleasedasa‘draftallocationpaper’forpubliccomment,invitingsubmissions.
Thisstageintheprocesswillallowthoseinvolvedinfishing,managingandresearchingthefishery,aswellasthoseinthewidercommunitywhomayhaveaspecificinterestinthisfisherytoprovideadditional‘input’.Dependingonthecircumstancesoftheparticularfishery,IFAACmayholdoraskdepartmentalofficerstoundertakemeetingsin
IntRoDUCtIonGovernmentPolicy2004onIntegratedFisheriesManagement(IFM)statesthattheMinisterwilldeterminetheprocessandtimeframesforresolvingallocationineachfishery,basedontheadviceoftheIntegratedFisheriesAllocationAdvisoryCommittee(IFAAC).
A. DeteRMInInG tHe neeD FoR A FoRMAL
ALLoCAtIon PRoCess In A FIsHeRyTheMinisterforFisherieshasrequestedthatIFAACbeginwiththeWesternRockLobsterFishery,AbaloneFisheryandtheWestCoastDemersalFinfishFishery.
InthefuturetheIFAACwillconsultbroadlyastofisheriesthatshouldbeincludedintheIFMprocessandadvisetheMinisterforFisheriesaccordingly.
B. DeveLoPMent oF An InteGRAteD FIsHeRIes MAnAGeMent FIsHeRy RePoRt – DePARtMent oF FIsHeRIes
Thesettingofsustainableharvestlevelsisfundamentaltoensuresustainablemanagement.
AnIntegratedFisheriesManagementFisheryReportwillbepreparedbytheDepartmentofFisheriesforeachfisherythatistobesubjecttotheIFMprocess(IFMGovernmentPolicy,2004,paragraphs6&7).
Thereportswillcontaindetailssuchas:
• thecurrentmanagementpracticeswithinthefishery;
• historicalcatchlevelsorestimatesofcatchtakenbyeachsector;
• thebiologyofthefishspeciesinvolved;
• thesustainableharvestleveloftheresource;and
• otherrelevantdatasuchasregionalemployment,economicandsocial/lifestyleissues.
Inshort,thereportshouldbearobustsummaryofthefactsaboutthefishery.
APPenDIX BInteGRAteD FIsHeRIes ALLoCAtIon ADvIsoRy CoMMIttee ALLoCAtIon PRoCess
WesteRn RoCK LoBsteR ResoURCe �7
relevantmetropolitanandregionallocationstoenableindustry,recreationalfishersandcommunitymemberstocontributetheirviewstotheIFAACprocess.
Thecommentperiodwillbenormallyforaperiodofthreemonths.
step � – IFAAC recommends an allocation to the Minister for FisheriesOncethecommentperiodhasclosed,andIFAAChasconsideredthesubmissionsreceived,IFAACwillfinaliseitspositionandsubmitafinalallocationreporttotheMinister.
step � – Determination by the Minister (IFM Government Policy, 200�, paragraph 12)TheMinisterforFisheriesisresponsibleforconsideringtherecommendationsofIFAACanddeterminingtheallocations.Theallocationsarelikelytobefixedforaperiodofaboutfiveyears.
TheMinisterhasagreedtoprovideastatementofdecisiononannouncementofhisdeterminationinanallocationmatter.TheMinistermaymakepublicIFAAC’sreportatthesametimeashisstatementofdecisionisreleased.(IFMGovernmentPolicy,2004,paragraphs11,12&13)
D. MeCHAnIsMs FoR FUtURe ALLoCAtIons BetWeen seCtoRs (IFM GoveRnMent PoLICy, PARAGRAPH 16)
TheTooheyreportstatesthatthe‘Communityexpectationsanddemandsovertheuseoffishresourceswillchangeovertimesoanintegratedframeworkmustallowforadjustmentsinallocationstooccur,bothwithinandbetweensectors’.IFMGovernmentPolicyparagraph16statesthatprioritywillbegiventoinvestigatingthedevelopmentofamarket-basedsystemtoachievere-allocations,alongwithsocialequityconsiderations,assoonaspractical.
IFAACproposestoinvestigatepossiblemechanisms,consultwithstakeholdersonproposalsthroughapublicprocessandprovideadvicetotheMinisteronpreferredoptions.InformulatingitsrecommendationsIFAACwillhaveregardtoGovernmentPolicyParagraphs14to17.
�8 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
APPenDIX CsTaKEHoLDErsuBmIssIoNsINsTEP1ofTHEIfaaCaLLoCaTIoNProCEssEs
AquacultureCouncilofWesternAustralia
Contact: MrDanMachin
Phone: 94928814
CharterBoatOwners&OperatorsAssociation
Contact: MrRickReid
Phone: 0418992383
DepartmentofFisheries
www.fish.wa.gov.au/docs/op/op021/fop021.pdf
NationalNativeTitleTribunal
Contact: GuyWright
Phone: 92689700
Recfishwest
www.recfishwest.org.au/SubIFMLobsterFMP192.htm
RecreationalFishingAdvisoryCommittee
Contact: DougBathgate
Phone: 94827332
WAFishingIndustryCouncil
www.wafic.com.au/images/139-IFAAC_WRL_WAFIC_submission_12_May_2005.pdf
WesternRockLobsterCouncil
www.rocklobsterwa.com
WesteRn RoCK LoBsteR ResoURCe �9
Theconsultationprocessusedtodisseminateinformationonallocationsforwesternrocklobsterincluded:
• advertisingtheavailabilityofthereportandmeetingdatesandvenuesintheWest Australian andregionalnewspapersontwooccasions;
• givingpresentationsatcommercialindustrymeetingsinGeraldton,JurienBayandFremantle(averageattendanceof~100);
• mailingacopyofthereporttoallcommercialfisherieslicenseesandcommercialfishinginterests(~1,000);
• holdingpublicmeetingsforrecreationalfishersatBunbury,Mandurah,HillarysandFremantle(2x)andJurienBay(2x)[attendancerangingfrom0to35];
• sendingletterstoallwesternrocklobsterrecreationallicenseesintheHillarys,FremantleandJurienBayareasnotifyingthemofthemeetingsbeingheldinthoselocations;
• releasingtwomediastatements;
• includinginformationinJako’scolumnintheWest Australian,anddepartmentalmagazinessuchasWestern Fisheries;
• includinginformationinIntegratedFisheriesManagementNewsletterscirculatedtointerestedpersons;
• givingpresentationsatrecreationalministerialcommitteemeetingsandtoVolunteerFisheriesLiaisonOfficers;
• holdingamediaconferencewithfishingwriters;
• includingaflyerwiththecommittee’srecommendationsinallwesternrocklobsterlicencerenewalssentfrommidDecemberonwards[reachingabout10,000licensees];
• makingthereportandrelevantinformationavailableontheDepartment’swebsite;and
• doingaradiointerviewonKarlLangdon’sfishingshowon6PRandrespondingtomediainquiries.
APPenDIX D IfaaCCoNsuLTaTIoNProCEss
�0 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
1. GraemeAttey
2. JohnBaas
3. JohnBaas
4. KenBentley
5. LisaBland(MarineParksandReservesAuthority)
6. JohnBresland
7. PeterBuzzacott
8. JamieChester
9. TerryCullen(JurienBayVolunteerSeaSearch&Rescue)
10. CharlesdeBeer
11. DepartmentofFisheriesWesternAustralia
12. DongaraProfessionalFisherman’sAssociationInc.
13. MartinEdwards
14. StevenGill(WesternRockLobsterCouncil)
15. TimGillingham
16. MatGuelpa
17. PeterHammond
18. RichardHewitt
19. MickHolt
20. Prof.GaryJeffrey&DrDianeJeffrey
21. TonyJurinovich(KajureeFishingCo.)
22. ShaneLehmann
23. KevinMaitland
24. MidwestRegionalRecreationalFishingAdvisoryCommittee
APPenDIX e LIsTofNamEsofaLLsuBmIssIoNsrECEIvEDforTHEWEsTErNroCKLoBsTErDrafTaLLoCaTIoNrEPorT
25. DeanOxwell
26. KeithPearce(ZoneCProfessionalFisherman’sAssociation)
27. JohnQuigleyJPMLA(MemberforMindarie)
28. RobinKRandall
29. RecreationalFishingAdvisoryCommittee(RFAC)
30. RockLobsterIndustryAdvisoryCommittee(RLIAC)
31. RARowe
32. SatelliteTVWA
33. PhilSomerville
34. Western AnglerMagazine
35. BrianStewart
36. NeilSumner
37. BobUrquhart
38. JamesWaite
39. ChrisWieman
40. AndyWoodford
41. GaryWotherspoon
42. DepartmentofConservationandLandManagement
43. Recfishwest
44. WestAustralianFishingIndustryCouncil(WAFIC)
45. RaphaelEllul
46. PeterCousemacker
47. RonRyan
WesteRn RoCK LoBsteR ResoURCe �1
APPenDIX FLetteR FRoM tHe MInIsteR 8 DeCeMBeR 200� – CUstoMARy FIsHInG
�2 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
WesteRn RoCK LoBsteR ResoURCe ��
APPenDIX GLetteR FRoM tHe MInIsteR 17 MAy 200�: IFM PRoCess – ConseRvAtIon seCtoR
�� InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
WesteRn RoCK LoBsteR ResoURCe ��
�6 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
APPenDIX HPro-formaLETTEraNDDaTasENTTosTaKEHoLDErs-BEsTEsTImaTEsofWEsTErNroCKLoBsTErrECrEaTIoNaLCaTCH
Dear
Best Estimates of the Western Rock Lobster Recreational Catch
Inthe Integrated Fisheries Management Report: Western Rock Lobster Resource(FisheriesManagementPaperNo.192)theDepartmentprovidedestimatesoftherecreationalcatchbasedonboththeDepartmentofFisheriesmailsurveyandthephonediarysurvey.
TheIntegratedFisheriesAllocationAdvisoryCommittee(IFAAC)hasaskedmetoprovideabriefpaperonthepreferredsurveymethodologyandbestestimateofrecreationalcatch.TheDepartment’sresponsetothisrequestisattached.IhavecopiedittoyousothatyoucanconsideritinthefinalisationofanysubmissionyoumaymaketoIFAAC.
Theattachedindicatesthatthephonediarysurveyprovidesthemostaccurateestimateofrecreationalcatch.TheResearchDivisionhasadjustedpastmailsurveyestimatesoftherecreationalsectorcatchtakingintoaccountthebiasthatwasidentifiedinthemailsurveyresults.TheDepartment’sResearchDivision’sadviceisthatthebasisforsuchanadjustmentissoundbecauseitisbelievedthatthemailsurveyresultsfromthepastarestillvalidinshowinghistoricaltrends,buttheyneedadjustmenttoshowtheactuallevelsofcatchmoreaccurately.
Ofcourse,theadjustmenthasn’tchangedtheactual(physical)sizeofthecatchbytherecreationalsector–itjustprovidesamoreaccurateestimateofitsmagnitude.
TheDepartmentwillbeproposinginitssubmissiontoIFAACthattheadjustedrecreationalcatchestimateshouldbeusedasthebasisforframingIFAAC’sdraftallocationrecommendationstotheMinisterforFisheries.TheDepartmentwillalsorecommendthatallocationdecisionsshouldspecifythemethodofestimationusedtodeterminetheallocationandtrackperformanceagainstthemovertime.
Yourssincerely
PETERROGERS
EXECUTIVEDIRECTOR
10May2005
WesteRn RoCK LoBsteR ResoURCe �7
Best estIMAtes FoR tHe WesteRn RoCK LoBsteR ReCReAtIonAL CAtCH
ReseARCH DIvIsIon, DePARtMent oF FIsHeRIes, 200�BackgroundThecatchofwesternrocklobster(WRL)bytherecreationalsectorhasbeenestimatedusinganumberofmethodsduringthelast20years.Theseincludecreelsurveys,mailsurveys,phonerecallsurveysandphonediarysurveys.
Eachoftheseestimationmethodshasadvantagesanddisadvantagesbothrelatedtothecostsofundertakingthesurveysinordertoproduceanestimatewithappropriatelevelsofprecision,butalsointermsofthedifferencesinthelevelofbiasassociatedwiththeestimationmethodology(i.e.howaccurateisthemethod).
Theestimationmethodwiththelongesttimeseriesistheendofseasonmailsurvey,whichhasbeeninoperationforthepast17years.Thismethodinvolvesthedistributionofletterstoarandomselectionoflicenceholdersrequestingtheyreturninformationontheircatchandeffortforthepastseason.
Suchsurveys,whichrequireindividualstorecalltheiractivitiesoverabouta12-monthperiod,arenowknowntoproducerecallbiasesintheestimatestheygenerate(generallyoverestimatingbyafactorofabouttwo)andarealsoaffectedbynon-responsebias(respondentsfishingactivitymaybedifferenttonon-respondentsfishingactivity).Thebiasis,however,generallyconsistentthroughtimeandthereforethechangesinthecalculatedestimatesamongyearscanprovideanaccuraterecordofthetrendincatches.
MetHoDsDetermination of the level of biasIntwoseparateyears,aphonediarysurveywasundertakenwitharandomselectionoflicenceholdersconcurrentwiththemailsurvey.Thesediary-basedsurveysprovidemoreaccurateestimatesbecauseofthecombinationoftheverylownon-responserate,plustheyinvolveindividualsfillinginadiaryoftheirfishingactivitieswhoarethencalledonceamonthtoobtainthedata.Thisgreatlyreducestherecallbias.
Thediarymethodgeneratedestimatesthatwereabouthalfthelevelofthemailsurvey-whichis
consistentwiththeexpectedbiasofthemailsurveys(asimilarlevelofbiashasalsobeenfoundfortheTasmanianrecreationallobsterfishery).
Fromthetwocomparisons,acorrectionfactorof1.90(SE:0.3)wasdeterminedusingalinearregressionmethod.However,asthereareonlytwodatapoints,thisvalueshouldbetreatedaspreliminary.Afurthercomparisonyearwillbeavailableafterthe2004/05season,followingwhichtherewillbearecalculationofthecorrectionfactor.
ResULtsHistorical CatchesGiventheaboveresult,thebestestimatesoftherecreationalcatchofwesternrocklobsteroverthelast17yearsareobtainedbyusingthemailsurveydatawhichhavebeensuitablyadjustedusingthecalculatedlevelofbias.ThesedataareshownbelowinFig.1.
Therecreationalcatch,likethecommercialcatch,undergoesrelativelylargefluctuationsamongstyearsdependingupontherelativelevelofrecruitmentthatoccurredthreetofouryearspreviously(asmeasuredbythepuerulussettlementindex).Therehas,however,beenanunderlyinglong-termtrendforincreasedrecreationalcatches,whichhaverisenaboutfour-foldoverthisperiodduetoalong-termincreaseineffort(aboutfourpercentperyear).Thus,therecreationalcatch(usingtheadjustedmailsurveyresults)hasincreasedfromabout120tonnesinthemid1980stolevelsthatcurrentlyexceed400tonnes(Table1).
Thepercentageofthetotalwesternrocklobstercatchtakenbytherecreationalsectorhasalsoincreasedfromaboutonepercentinthemid1980stolevelsthatnowexceedthreepercent.Duringthereferenceperiod(1997/98to2001/02)therecreationaltakevariedbetween2.3to3.1percentofthetotallobstercatch(Fig.2).
InZoneAandB,therecreationalcatchhasremainedalmostconstantataboutonepercentofthetotalforthesezones,whereastherecreationalcatchinZoneCdisplaysbothannualvariationsandalongertermincreasefromtwopercentinthemid1980stothecurrentlevelsoffivetosixpercent(Fig.3).
FoReCAsteD CAtCHesTherelationshipsbetweenpuerulussettlementindices(combinedwithexpectedlevelsofeffort)and
�8 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
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Figure1 Plotsoftherecreationalcatchestimates(thicklines)forwesternrocklobsterbaseduponboththe‘rawestimates’fromthemailsurveyandtheadjustedestimatescalculatedfromthe‘phonediarybased’correctionfactor.The95percentconfidenceintervalsarealsopresented(thinlines).Theforecastrecreationalcatchesfor2004/05to2006/07arebasedonpuerulussettlementlevelsfortheperiod2001to2004.
Figure3Theproportion(%)ofthetotalwesternrocklobstercatchtakenbyrecreationalfishersusingtheadjustedrecreationalcatchestimatesinZonesBandZoneC.Theforecastpercentagesarebasedontheexpectedcommercialandrecreationalcatchesforthenextthreeseasons(2004/05to2006/07).NotetherecreationalcatchinZoneAisminimalandisincludedinZoneB.
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boththerecreationalandcommercialcatchesthreetofouryearslaterhavebeendevelopedandarereportedannuallyintheState of Fisheriesreports.Thepredictionsforthethree-yearperiodforwhichpuerulussettlementiscurrentlyavailablesuggestthattherecreationalcatchwillbeatrelativelysimilarlevelsin2004/05,atabout460tonnes,butwilldeclineineachofthefollowingtwoyearsgiventhelowerpuerulussettlementlevelsthatoccurredduringthe2001to2004period.
Thus,whilsttheproportionofthetotalcatchcaughtbytherecreationalsectorislikelytoincreasetoapproximately3.5percentin2004/05,thiswill,assumingnomajormanagementchanges,probablydeclineinthefollowingyearstolevelsbelowthreepercent.
MAnAGeMent IMPLICAtIonsGiventhecurrentmethodsusedformonitoringthesizeofthewesternrocklobsterspawningstock,thechangesinthetwoestimatesofrecreationalcatchhavevirtuallynoimpactontheassessmentofthecurrentstatusofthisstock.Therefore,therewillbenodirectflow-onmanagementimplicationsfromtheseadjustments.
Figure2Theproportion(%)ofthetotalwesternrocklobstercatchtakenbyrecreationalfishersusingtheadjustedrecreationalcatchestimates.Thetwoverticaldottedlinesindicatethereferenceperiod1997to2001.Theforecastpercentagesarebasedontheexpectedcommercialandrecreationalcatchesforthenextthreeseasons(2004/05to2006/07seeabove).
WesteRn RoCK LoBsteR ResoURCe �9
Table2 ThebestestimatesofthetotalrecreationallobstercatchlevelsandtheirproportionofthetotallobstercatchforZonesA&BandCcalculatedusingtheadjustedmailsurveydata.Thedatafor2004/05to06/07(initalics)areprojecteddatabaseduponpuerulussettlementdataandexpectedlevelsofeffortandapplyingthecorrectionfactortotheprojectionsgiveninTable11oftheIFMreport(whichwereroundedtothenearest100tonne).
YearRecreationalCatch(tonnes) %oftotallobstercatch
ZoneC ZonesA&B ZoneC ZonesA&B
1996/97 121 41 2.6 0.7
1997/98 192 63 3.6 1.2
1998/99 268 61 3.8 1.0
1999/00 340 53 4.0 0.8
2000/01 259 38 4.1 0.7
2001/02 234 53 4.9 1.2
2002/03 406 63 5.9 1.2
2003/04 369 59 4.3 1.1
2004/05 421 53 5.4 0.9
2005/06 316 53 5.6 1.0
2006/07 210 53 4.7 0.9
Table1 Thebestestimatesofthetotalrecreationallobstercatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydata.Thedatafor2004/05to06/07(initalics)areprojecteddatabaseduponpuerulussettlementdataandexpectedlevelsofeffortandapplyingthecorrectionfactortotheprojectionsgiveninTable11oftheIFMreport(whichwereroundedtothenearest100tonne).
YearRecreational
Catch(tonnes)%oftotal
lobstercatch
1996/97 161 1.5
1997/98 255 2.4
1998/99 329 2.5
1999/00 392 2.6
2000/01 296 2.5
2001/02 287 3.1
2002/03 468 3.9
2003/04 428 3.1
2004/05 474 3.5
2005/06 368 3.3
2006/07 263 2.6
�0 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
LIst oF FIGUResFigure1Estimatedrecreationalcatchforwesternrocklobster(solidline).95percentconfidenceintervalshavealsobeenincluded.Forecastshavebeenincludedforseasons2004/05to2007/08(dashedline).
Figure2Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure3Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1986/87to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure4Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1996/97to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure5ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforZoneC.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure6ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforZoneC.Seasons1986/87to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure7ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforZoneC.Seasons1996/97to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Figure8ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforZoneB.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
APPenDIX ILoNG-TErmGroWTHTrENDsINrECrEaTIoNaLroCKLoBsTErCaTCHrEsEarCHDIvIsIoN,DEParTmENToffIsHErIEs,16JuNE2005
LIst oF tABLesTable1Estimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydata.Thedatafor2004/05to2007/08areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
Table2EstimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydataforzoneC.Thedatafor2004/05to2007/08(initalics)areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
Table3EstimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydataforzoneB.Thedatafor2004/05to2007/08(initalics)areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
WesteRn RoCK LoBsteR ResoURCe �1
LonG-teRM GRoWtH tRenD In ReCReAtIonAL RoCK LoBsteR CAtCH
ADvICe At 1� JUne 200�
BACKGRoUnDThisdocumentprovidestheFisheriesResearchadviceonexpectedlong-termtrendsinthepercentofrecreationalcatchasrequestedbyIFAACintheirletterof10June2005.
MetHoDsInformationonpuerulussettlementsatAlkimosupto2004/05,havebeenusedtopredicttherecreationalandcommercialcatchto2007/08.The2004/05Alkimospuerulussettlementdataalsoprovidesapreliminaryindicatoroftherecreationalcatchin2008/09,asmostoftheseasonscatchtakenbytherecreationalsectorismadeintheearlypartoftheseason(Nov-Jan).Unlikepredictionsfortherecreationalsector,predictionsforthecommercialcatchrequireboththe2004/05and2005/06puerulussettlement.Sincethe2005/06puerulussettlementisnotavailableithasnotbeenpossibletopredictthecommercialcatchin2008/09.
IFAAChasalsorequestedinformationon2009/10and2010/11.Theonlycommentthatcanbemadeontherecreationalcatchin2009/10isthatthepuerulussettlementin2005/06willbeapart-contributortothiscatchandthattheLeeuwinCurrentduring2005affectsthelevelofsettlementin2005/06.GiventhattheLeeuwinCurrentin2005hasbeenofaveragestrengththenwecanexpectanaveragelevelofsettlementin2005/06.
Thereisnobasisforpredictingtherecreationalrocklobsterin2010/11basedonpuerulussettlementdata.Thusestimatesofpercentrecreationalcatchfor2008/09to2010/11arebasedonthelong-termtrendingrowthoftherecreationaleffortunderthecurrentlevelofmanagementandaveragepuerulussettlementbasedonlast10years.
Thepredictionoftheexpectedtrendinpercentofrecreationalcatchhasbeenbasedonthefollowingdatasets(asrequestedbyIFAAC):(a)1986/87-2003/04actualcatches;(b)1996/97-2007/08usingactualandpredictedcatches.The1986/87-2007/08datasetusingactualandpredictedcatcheshasalsobeenanalyzed.The1996/97-2001/02datasetwasconsideredtooshortatimeseriestoprovideabasisforpredictingthetrendinpercentrecreationalcatch.
Therelationshipexaminedtoassessthetrendinpercentofrecreationalcatch(P.catt)withtheannualtrend(T)andthepuerulussettlement3and4years(Pt-3,t-4)beforewas:
P.catt = exp(a + b*T + d*log(P
t-3,t-4)) 1)
TheanalysishasbeenundertakenforthewholefisheryandbyZonesA/BcombinedandZoneC.
Therecreationalcatchdatainthisdocumentareallbasedonthemailsurveydataadjustedfortherecallbiasthathasbeenestimatedfromthephonediarysurvey.
ResULtsOverall fisheryThepuerulusdatafor2004/05indicatesanimprovementinrecreationalcatchisexpectedin2007/08and2008/09aftertheexpectedpredictedlowcatchofabout260tonnesin2006/07(Fig.1).Thetrendinpercentrecreationalcatchalsoshowsanincreasein2007/08.Thepredictedpercentagesfor2004/05to2007/08basedonpuerulussettlementarealsoshown.
Therelationshipbasedonequation1andthe1986/87to2003/04dataindicatesthatthetimetrendissignificantbutthepuerulussettlementisnotsignificant(Fig.2)fortheproportionofcatchthatisrecreational.Theexpectedpercentagesfor2008/09to2010/11arebasedonthelong-termtrendineffortandassumingaveragepuerulussettlementandthecurrentmanagementrules(Table1).
Timetrendbeing‘significant’indicatesitishelpfulin‘prediction’whilstpuerulussettlement‘notsignificant’meansthatitisnot.
Forecastsweremadeusingthemodelconstructedfromdataofseasons1986/87throughto2003/04sinceitprovidesareasonablenumberdatapointstoestimaterequiredcoefficientsandthisseriesalsorepresentsrealdata.
Therelationshipbasedonequation1andthe1986/87to2007/08and1996/97to2007/08actualandpredicteddataindicatesthatthetimetrendandthepuerulussettlementaresignificant(Fig.3and4respectively).Theexpectedrecreationalpercentagesfor2008/09to2010/11arebasedonthelong-termtrendandassumingaveragepuerulussettlement.
�2 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
Figure2 Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d*log34Alk)Parameters: Value Std. Error t value a –0.147367 0.1675280 –0.879657b 0.063977 0.0102768 6.225380d 0.058069 0.0605989 0.958252
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Figure1 Estimatedrecreationalcatchforwesternrocklobster(solidline).95percentconfidenceintervalshavealsobeenincluded.Forecastshavebeenincludedforseasons2004/05to2007/08(dashedline).
Figure3Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1986/87to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d*log34Alk) Parameters: Value Std. Error t value a –0.2768800 0.13983300 –1.98008b 0.0520754 0.00536996 9.69754d 0.1352060 0.03278680 4.12378
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/11
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ActualCatch prediction estimateModel estimate
Zones A/B AnD CTheproportionofcatchthatisrecreationalforZoneCshowsasimilartrendtothewholefisherycatchdataduetotheremovalofarelativelyconstantcatchintheZonesA/B(Fig.5to7).Therelationshipbasedonequation1andthe1986/87to2003/04dataindicatesthatthetimetrendissignificantbutthepuerulussettlementisnotsignificant(Fig.5).Theexpectedpercentagesfor2008/09to2010/11arebasedonthelong-termtrendandassumingaveragepuerulussettlementandthecurrentmanagementrules(Table2).NotethattheproportionofrecreationalcatchinZoneC(Figs.5to7)issubstantiallyhigherthanforthewholefishery(Figs.2to4).ThisisbecausemostoftherecreationalcatchismadeinthisZone,butonaverageonlyhalfofthecommercialcatchoccursinZoneC.
TherecreationalcatchforZonesA/Bdoesnotshowanysignificanttrendbasedonthe1986/87to2003/04dataandhencethemeancatch(53tonnes)representing0.94%(+/-0.40confidencelimits)providesareasonableindicatoroffuturecatchesunderaveragepuerulussettlement,noincreaseineffortandthecurrentmanagementrules(Fig.8,Table3).
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ActualCatch prediction estimateModel estimate
WesteRn RoCK LoBsteR ResoURCe ��
Figure4Modelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishers.Seasons1996/97to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d*log34Alk) Value Std. Error t value a –0.2079070 0.3479620 –0.597498b 0.0492245 0.0137591 3.577600d 0.1303040 0.0492811 2.644100
SeasonRecreational
Catch(tonnes)%oftotal
lobstercatch
1996/97 161 1.5
1997/98 255 2.4
1998/99 329 2.5
1999/00 392 2.6
2000/01 296 2.5
2001/02 287 3.1
2002/03 468 3.9
2003/04 428 3.1
2004/05 474 3.5
2005/06 368 3.3
2006/07 263 2.6
2007/08 320 3.1
2008/09 ? 4.6
2009/10 ? 4.9
2010/11 ? 5.2
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(%)
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6 ActualCatch prediction estimateModel estimate
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/11
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Table1 Estimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydata.Thedatafor2004/05to2007/08areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
�� InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
Figure8ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforzoneB.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat ~ intercept
Coefficients:
Value Std.Error t value r(>|t|)(Intercept) 0.9415 0.0491 19.1839 0.000
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ActualCatch prediction estimateModel estimate
Figure5ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforzoneC.Seasons1986/87to2003/04havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d*log34Alk)Parameters: Value Std. Error t value a 0.3300490 0.1812870 1.82059b 0.0660851 0.0112898 5.85351d 0.0306277 0.0659951 0.46409
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/11
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Figure6ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforzoneC.Seasons1986/87to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d*log34Alk)Parameters: Value Std. Error t value a 0.2416010 0.14531200 1.66264b 0.0614556 0.00553944 11.09420d 0.0736918 0.03241170 2.27362
Figure7ModelledandactualestimatesfortheproportionoftotalcatchtakenbyrecreationalfishersforzoneC.Seasons1996/97to2007/08havebeenusedtoconstructthemodel.PuerulusindexP(t-3),(t-4)wasused.
Formula: p.cat~exp(a+b*t+d)*log34Alk)Parameters: Value Std. Error t value a 0.3447650 0.3340140 1.03219b 0.0579312 0.0131528 4.40448d 0.0631223 0.0461166 1.36875
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ActualCatch prediction estimateModel estimate
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/11
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/07
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/11
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cent
age
(%)
ActualCatch prediction estimateModel estimate
WesteRn RoCK LoBsteR ResoURCe ��
Table2 EstimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydataforzoneC.Thedatafor2004/05to2007/08(initalics)areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
SeasonRecreational
Catch(tonnes)%oftotal
lobstercatch
1996/97 121 2.6
1997/98 192 3.6
1998/99 268 3.8
1999/00 340 4.0
2000/01 259 4.1
2001/02 234 4.9
2002/03 406 5.9
2003/04 369 4.3
2004/05 421 5.4
2005/06 316 5.6
2006/07 210 4.7
2007/08 270 5.6
2008/09 ? 7.0
2009/10 ? 7.5
2010/11 ? 8.0
Table3 EstimatesofrecreationalcatchlevelsandtheirproportionofthetotallobstercatchcalculatedusingtheadjustedmailsurveydataforzoneB.Thedatafor2004/05to2007/08(initalics)areprojectedfromforecastedcatchofbothrecreationalandcommercialfishers.Forecastsfor2008/09to2010/11aremadefromthemodelofproportiontakenbyrecreationalfishers,basedondatafrom1986/87to2003/04.
SeasonRecreational
Catch(tonnes)%oftotal
lobstercatch
1996/97 41 0.7
1997/98 63 1.2
1998/99 61 1.0
1999/00 53 0.8
2000/01 38 0.7
2001/02 53 1.2
2002/03 63 1.2
2003/04 59 1.1
2004/05 53 0.9
2005/06 53 1.0
2006/07 53 0.9
2007/08 53 0.9
2008/09 53 0.9
2009/10 53 0.9
2010/11 53 0.9
�6 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
Yourref:
Ourref: RS860/04
Contact: NickCaputi9203
MrMurrayJorgensenOAM,JP
Chair,IntegratedFisheriesAllocationAdvisoryCommittee
DepartmentofFisheries
3rdFloor,168-170StGeorgesTerrace
PERTHWA6000
Re: Rock lobster 2004/05 recreational catch surveys
DearMurray,
Thankyouforyourletterofthe12Septemberregardingthe2004/05westernrocklobsterrecreationalsurveyresults.InyourletteryourequestedthattheDepartmentprovidethefollowinginformation:
1. thecatchestimatesfromthe2004/05recreationalwesternrocklobsterphone/diarysurveyandmailsurvey;
2. therelationshipoftherecreationalcatchestimatesfromthesurveystothecommercialcatch;and
3. anupdatedassessmentoftherelationshipbetweenthephone/diarysurveycatchestimatesandmailsurveycatchestimates.
TheResearchDivisionadvisesmethatthe2004/05phone/diarysurveywasarepeatofthe2000/01and2001/02surveys.Thecatchestimatesfromtheseearlierphone/diarysurveyswerecomparedtothelong-runningmailsurveysandanadjustmentfactorof1.9wasusedtoadjustthemailsurveycatchestimatesforrecallbiasknowntooccurinrecallsurveys.
Attachment1outlinestheresultsofthe2004/05surveysandacomparisonwiththeearliersurveys.Insummary,theresponsestoyourthreequestionsareasfollows:
1. The2004/05recreationalcatchwasestimatedtobe201tonneusingtheresultsfromthephone/diarysurveyand721tonneusingtheresultsfromthemailsurvey.Theestimateoftherecreationalcatchusingthemailsurveyresultsandapplyingtheexistingadjustmentfactorof1.9was379tonne.
2. The2004/05mailsurveycatchestimateretainedtheclosecorrelationtothecommercialcatch.Thephone/diarysurveycatchestimate,however,waslowerthanexpected.Themainreasonforthiswasthattherewasalowerthanexpectedparticipationrateandfewerthanexpecteddaysfishedperyearbytheparticipantsinthephone/diarysurvey.
3. Recently,anadjustmentfactorof1.9basedonacomparisonofthe2000/01and2001/02phone/diarysurveysandmailsurveyshasbeenusedbytheDepartmenttoestimatetherecreationalcatch.Owingtothelowerthanexpectedphone/diarycatchestimate,the2004/05surveyproducedaratioof3.6betweenthetwosurveymethods.
APPenDIX JrEsuLTsofTHE2004/05rECrEaTIoNaLsurvEys
WesteRn RoCK LoBsteR ResoURCe �7
Whenallthreephone/diarysurveysarecompared,theadjustmentfactoris2.3;however,thestandarderrorassociatedwiththisestimateislargeasitisbasedonthreesamples.Atleastanotherfiveyearsofcomparisonwouldberequiredtoobtainamorereliableadjustmentfactor.
Thesamplesizeforthephonediarysurveywasbasedonachievingastandarderroroftherecreationalcatchforthewholefisheryofabout10%andincludedanassumptionabouttheparticipationrate.Thelowerthanexpectedparticipationratein2004/05hasresultedinasmallersamplesizeofthosewhofishedduringtheyearandhencealargerstandarderrorassociatedwiththecatchandfishingeffortestimates.
Giventhelargeerrorassociatedwiththe2004/05estimateandlowerthanexpectedparticipationratetheDepartmenthasformedtheviewthatthe1.9adjustmentfactorshouldcontinuetobeusedasaninterimarrangementtoestimatetherecreationalcatchuntilmorereliableestimatesoftherecreationalcatchareavailable.Notingthattheexistingcorrectionfactorisconsistentwiththepublished‘BestEstimatesoftheWesternRockLobsterRecreationalCatch’andwhattheliteraturesuggests(seepart4ofattachment1andattachment2).
Ifreliableestimatesforthetwozonesofthefisheryarerequiredforfutureallocationpurposes,astratifiedsampleisrequiredwithahighersamplesizeforeachzoneoverafive-yearperiod.
TheDepartmentisinvestigatingintroducingin2006/07astratifiedphone/diarysurvey,withsamplesizesappropriatetoachievinga10%standarderroroncatchestimatesforeachofthetwozonesinordertoprovideamorereliableestimateoftherecreationalcatch.Akeyconsiderationinevaluatingtheimplementationofthesurveywillbethecostsinvolved,asamoreintensivesurveyislikelytocostconsiderablymorethantheexistingsurveys.
Ifyourequireanyfurthertechnicalinformation,pleasefeelfreetocontactDrNickCapution92034165and/orinviteDrCaputitoattendanIFAACmeetingforfurtherdiscussion.
Yourssincerely
PPRogers
EXECUTIVEDIRECTOR
24January2006
Attachment1: 2004/05rocklobsterrecreationalsurveys.
Attachment2: Asurveyofthe2000/01TasmanianRecreationalrocklobsterfisheryandoptionsfor futureassessment.
�8 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
Table1 Comparisonofdifferentvariableestimatesusingdiaryandmailsurveydataforvariousseasonsinwhichbothmethodswereperformed.
Variable2000/01 2001/02 2004/05
Diary Mail Diary Mail Diary Mail
Licences 36,933 37,243 36,460 39,623 40,900 45,188
Responserate 83% 51% 78% 51% 82% 43%
Participationrate0.640.64/0.77=
0.770.83
0.550.55/0.69=
0.690.80
0.490.49/0.70 =
0.700.70
CPUE(lobs/day) 1.81 1.48 1.63 1.51 1.95 1.60
Effort(days/fisher)15.515.5/26.4=
26.40.59
14.414.4/26.5 =
26.50.54
10.310.3/28.6 =
28.60.36
Totalrecreationalcatch(t)
332332/560=
5600.59
235235/545=
1.20.43
201201/721=
7210.28
Totalcommercialcatch(t)
11,273 11,273 8,983 8,983 12,146 12,146
Total 2000/01 2001/02 2004/05
Number of Fishers F 20,700 17,300 16,800
SE(F) SE(F) 900 900 1,000
Effort E 310,000 242,000 163,800
SE(E) SE(E) 35,000 26,000 20,400
Catch (numbers) C 560,000 376,000 329,000
SE(C) SE(C) 73,000 44,000 45,000
C(Tonnes) C(Tonnes) 281 188 165SE(C) (Tonnes) SE(C) (Tonnes) 36 22 22
Table2 ThebestestimatesofthetotalrecreationallobstercatchlevelsandtheirproportionofthetotallobstercatchforZonesA&BandCcalculatedusingtheadjustedmailsurveydata.Thedatafor2004/05-06/07(initalics)areprojecteddatabaseduponpuerulussettlementdataandexpectedlevelsofeffortandapplyingthecorrectionfactortotheprojectionsgiveninTable11oftheIFMreport(whichwereroundedtothenearest100tonne).
Attachment 1 - 200�/0� rock lobster recreational surveys1. DifferencesbetweenthesurveysindifferentseasonsThemajordifferencebetweenthecomparisonofthediaryandmailsurveyof2004/05tothoseofseasons2000/01and2001/02isthereductioninparticipationrateandthenumberofdaysfishedperyear(Table1).
WesteRn RoCK LoBsteR ResoURCe �9
Table3 CatchandeffortforthephonediarysurveyinZoneB.
Total 2000/01 2001/02 2004/05
NumberofFishers F 3,900 3,600 3,300
SE(F) SE(F) 570 550 560
Effort E 56,000 46,000 42,300
SE(E) SE(E) 12,000 9,000 17,400
Catch(numbers) C 102,000 93,000 73,300
SE(C) SE(C) 23,000 20,000 29,900
C(Tonnes) C(Tonnes) 51 47 37
SE(C)(Tonnes) SE(C)(Tonnes) 12 10 15
0
25000
50000
75000
100000
125000
150000
November December January February March April May June
Month
2000/01
2001/02
2004/05
Effo
rt (
Day
s F
ishe
d)
Figure1 Numberofdaysfishedbymonthfromthephone/diarysurveyforthethreeseasonssurveyed.
�. Reliability of the Zone estimatesThemajorityoftherecreationalcatch(~80percent)isfromzoneC(Tables2and3).ThereliabilityofthetotalcatchestimateinzoneBisquestionable,particularlyin2004/05whenthereisastandarderrorof40percent,comparedto21percentand24percentforthetwootherseasons(Table3).
Around70percentofrecreationalfishersinZoneBliveinGeraldton.
NB: ZoneA(Abrolhos),ZoneB(northof30th),ZoneC(southof30th)
�. Reliability of the mail to phone diary correction factorTheliteraturesuggeststhatcomparisonsofmailanddiarysurveysdifferbyafactoroftwoduetorecall,prestigeandotherbiases.Theapplicationofrecallbasedsurveysasanalternativetousingthetelephone/diarywasassessedbyForwardandLyle(2002).Inamorerecentpublication,LyleandMorton(2004)showedthatrecallsurveysonrecreationalrocklobsterandabalonecatchescomparedtophonediarysurveyshaddifferencesof1.27and2.24forrocklobsterandabalonecatchand1.4and2.2forrocklobsterandabaloneeffort.Excludingtheratioofthemailtothediarysurveyestimatefor2004/05,thatresultisinagreementwithratioestimatesofindividualseasonsandseasonscombined(Table4).
Giventhelargestandarderrorsaroundtheseratios(seeIVandVinTable4)wesupporttheuseofanindicativeconversionfactor,ratherthancreatingconfusioninthecommunitybychangingtheactualconversionfactoreachyearthatwerunbothsurveys.Forthispurpose,maintaininganindicativeconversionof1.9wouldseemtobedefendable.
Furthermailandphone/diarysurveysshouldbeundertakeninthefuturetoimproveourunderstandingofthedifferencesbetweenthesetwosurveymethodsandtheconversionfactorsforthetwomethods.
2. Differences in the distribution of effortThelevelofeffortreportedbythediarysurveyin2004/05isconsiderablylessthanwhatwasreportedinpreviousseasons(Figure1).Thedifferenceinthemonthlydistributionoffishingeffortin2004isinterestinginthatthoughitstartedatalevelsimilarto2001/02,itfellquickerfromJanuaryonwards,thanwasrecordedinthetwoearlierseasonforwhichtherearedata.Thereisnoobviousexplanationforthisanditwouldexplainthesubstantiallyreducedcatchin2004/05.
60 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
Table4 Differentratiosforconvertingdiarysurveyestimatedtotalcatchtothatofthemailsurvey.Ratioshavebeendeterminedusingalinearmodelwithnointerceptusingdatafordifferentseasons(indicatedwithatick).
Model 2000/01 2001/02 2004/05 Ratio(s.e)I 3 1.69
II 3 2.32
III 3 3.6
IV 3 3 1.90(0.30)
V 3 3 3 2.23(0.50)
ReFeRenCesForward,JandJ.M.Lyle(2002).A survey of the 2000/01 Tasmanian recreational rock lobster fishery and options for future assessment.TasmanianAquacultureandFisheriesInstituteFinalreporttotheMarineRecreationalFisheryCouncil,36p.
Lyle,J.M.andMorton,A.J.(2004).Survey of the 2002/03 Tasmanian recreational rock lobster and abalone fisheries. TasmanianAquacultureandFisheriesInstitute,UniversityofTasmania,TechnicalReportSeries22:1-33.
5. Identifyfuturedatarequirementsandthecostofdatacollectiontosupporttheimplementationofthecommittee’srecommendations.
6. Provideanassessmentoftheimpactimplementationofthecommittee’srecommendationswillhaveonthesector’scatchshares.
7. Provideadiscussiononthebasisforclaimsforcompensationonimplementationofthecommittee’srecommendations.
MeMBeRsHIPDepartmentofFisheries(Chair)
RockLobsterIndustryAdvisoryCommittee(RLIAC)
RecreationalFishingAdvisoryCommittee(RFAC)
WesternRockLobsterCouncil(WRLC)
Recfishwest
WesternAustralianFishingIndustryCouncil(WAFIC)
Indigenous
KevinDonohue:–IntegratedFisheriesAllocationAdvisoryCommittee(IFAAC)Representative
ExecutiveSupport:DepartmentofFisheries
Theconsultativecommitteeisproposedtodiscussandnegotiatesolutionstointersectoralconflictissuessuchasspatialandtemporalseparation.ThecommitteeshouldprovideareporttotheIFAAConitsrecommendationswithin12monthsofitsfirstmeeting.
TheIFAACissatisfiedthatthecasehasbeenmadethatoncesectorsareassuredoftheirshareoftheresourcethatconflictssuchasthe‘whitesrun’canberesolvedthroughnegotiation.Theconsultativecommitteeistaskedwithprogressingsolutionsinatimelybasis.
TheIFAACafterconsiderationoftheConsultativeCommitteereportwillmakearecommendationtotheMinisteronhowtoaddressthisresourceaccessconflictthroughspatialandtemporalseparationofthesectors.
Theproposedtermsofreferenceandmembershiparesetoutbelow:
PRoPoseD teRMs oF ReFeRenCe1. ProvideadvicetoIFAAConstrategiestoaddress
spatialandtemporalcompetitionforwesternrocklobsternearshore,takingintoaccountthegovernment’sIFMpolicyprinciplesandtherecommendationsapprovedbytheMinisterregardingallocationsforwesternrocklobster.
2. Evaluatetheoptionofusingthemarineparkplanningprocessasameansofdevelopingandimplementingstrategiesthataddressspatialandtemporalcompetitionnearshore.
3. IdentifychangestotheDepartment’scompliance,researchandmanagementprogramsrequiredtosupportthecommittee’srecommendations.
4. Identifytheadditionalcost(ifany)totheDepartment’sprograms(research,complianceandmanagement)ofimplementingthecommittee’srecommendations.
WesteRn RoCK LoBsteR ResoURCe 61
APPenDIX KProPosEDCoNsuLTaTIvECommITTEEmEmBErsHIPaNDTErmsofrEfErENCE
62 InteGRAteD FIsHeRIes MAnAGeMent ALLoCAtIon RePoRt
ESD EcologicallySustainableDevelopment
FMP192 FisheriesManagementPaperNo.192
FMP211 FisheriesManagementPaperNo.211
FRMA Fish Resources Management Act 1994
IFAAC IntegratedFisheriesAllocationAdvisory Committee
IFM IntegratedFisheriesManagement
MFL ManagedFisheryLicences
NNTT NationalNativeTitleTribunal
RFAC RecreationalFishingAdvisory Committee
RLIAC RockLobsterIndustryAdvisory Committee
SHL SustainableHarvestLevel
VMS VesselMonitoringSystem
WAFIC WesternAustralianFishingIndustry Council
WCRLMF WestCoastRockLobsterManaged Fishery
WRLMASC WesternRockLobsterMinisterial AdvisorySub-Committee
WRLRASC WesternRockLobsterRecreational AdvisorySub-Committee
APPenDIX LaBBrEvIaTIoNs