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INTEGRATED FISHERIES MANAGEMENTDRAFT ALLOCATION REPORT

ROE’S ABALONE - PERTH METROPOLITAN REGION

Prepared by the Integrated Fisheries Allocation Advisory Committee

Fisheries Management Paper No. 214AUGUST 2006

ISSN 0819-4327

IFAAC Locked Bag 39

Cloisters Square Post Office PERTH WA 6850

Ph: (08) 9482 7333 • Fax: (08) 9482 7224

Email: [email protected]

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INTEGRATED FISHERIES MANAGEMENT

Prepared by the Integrated Fisheries Allocation Advisory Committee

for the Minister of Fisheries

DRAFT ALLOCATION REPORT – ROE’S ABALONE - PERTH METROPOLITAN REGION

Fisheries Management Paper No. 214

AUGUST 2006

ISSN 0819-4327

ROE’S ABALONE – PERTH METROPOLITAN REGION �

CONTENTS

MAKING A SUBMISSION ..................................................................................................................................3

1 IFAAC DRAFT RECOMMENDATIONS...............................................................................................................4

1.1 Recommendations........................................................................................................................4

1.2 ItemstoNote...............................................................................................................................5

2 INTRODUCTION ..........................................................................................................................................6

3 BACKGROUND ...........................................................................................................................................7

3.1 TheIFAAC....................................................................................................................................73.1.1 Conflictofinterest...........................................................................................................73.1.2 Guidingprinciples...........................................................................................................73.1.3 TheIFAAC’stermsofreference.........................................................................................9

3.2 MinisterialAdvice.......................................................................................................................103.2.1 Customaryallocation.....................................................................................................103.2.2 Formalisingcatchsharesovertheperiod1997–2001.....................................................103.2.3 Allocationtothenon-fishingsector.................................................................................103.2.4 Regionsoverwhichallocationsshouldbemade..............................................................113.2.5 AllocationsbysubregionswithinthePerthmetropolitanregion.........................................11

3.3 AdditionalGuidingPrinciplesAdoptedbytheIFAAC.....................................................................123.3.1 Catchdatauncertainty..................................................................................................123.3.2 Optimisingthebenefittothecommunity.........................................................................13

3.4 DescriptionoftheFishery...........................................................................................................143.4.1 CustomaryFishing........................................................................................................183.4.2 RecreationalFishing......................................................................................................183.4.3 CommercialFishingandAquaculture..............................................................................18

4 CATCH INFORMATION ..............................................................................................................................20

4.1 Customary.................................................................................................................................20

4.2 Recreational...............................................................................................................................20

4.3 Commercial................................................................................................................................21

4.4 RecreationalandCommercialCatchShares................................................................................22

5 ALLOCATION ISSUES ...............................................................................................................................23

5.1 AlignmentofBoundaries.............................................................................................................23

5.2 HillarysBoatHarbourtoMooreRiverreeftopFishing..................................................................25

5.3 IncidentalMortality....................................................................................................................255.3.1 Aharvestlevelincorporatingtotalmortality.....................................................................265.3.2 Allocationsthataccountfortotalmortality......................................................................265.3.3 AccessArrangements....................................................................................................26

5.4 ProportionalAllocationsforthePerthmetropolitanregion...........................................................275.4.1 Managementandstockassessment..............................................................................275.4.2 Managementflexibility...................................................................................................285.4.3 Impactofcatchonthestock..........................................................................................295.4.4 Optimisingsocioeconomicbenefits................................................................................295.4.5 Summaryofissues.......................................................................................................295.4.6 Discussion...................................................................................................................29

6 ALLOCATIONS UNDER A SUSTAINABLE HARVEST LEVEL .........................................................................31

6.1 CustomaryFishing......................................................................................................................31

6.2 ProportionalAllocationsfortheRecreationalandCommercialSectors.........................................326.2.1 Option1-RecreationalproportionequaltotheSHLlesstheTACC...................................336.2.2 Option2-Averageovertheperiod2000-2003................................................................336.2.3 Option3-Averageovertheperiod1997-2001................................................................336.2.4 Option4-55percentrecreationaland45percentcommercial.........................................346.2.5 Option5–50:50basedonnumbersofanimals..............................................................346.2.6 Option6-Twicethecurrent‘real’shareor20yearsgrowth.............................................346.2.7 Summaryofproportionalallocationoptions....................................................................35

6.3 Aquaculture...............................................................................................................................36

7 OTHER ISSUES ...........................................................................................................................................37

7.1 ReallocationMechanisms...........................................................................................................37

7.2 ManagementoftheRecreationalsector’sallocation....................................................................37

7.3 MonitoringAllocations................................................................................................................38

� INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

7.4 AllocationsOutsidethePerthMetropolitanRegion......................................................................38

7.5 ManagementCommittees...........................................................................................................38

7.6 BroaderLegislativeArrangements...............................................................................................40

REFERENCES ................................................................................................................................................40

APPENDICES .................................................................................................................................................41

Appendix A Integrated Fisheries Management – Government Policy 1 October 2004 .................................42

Appendix B Integrated Fisheries Management – Allocation Process ...........................................................45

Appendix C Source of stakeholder submission to IFAAC .............................................................................47

Appendix D Ministerial letter on customary fishing .....................................................................................48

Appendix E Minister letter on allocations to the conservation sector ........................................................50

Appendix F Ministerial letter on allocations within the Perth metropolitan region.....................................53

Appendix G Departmental letter on management by subregions within the metropolitan region ...............55

Appendix H Departmental letter on the customary take of abalone ...........................................................57

Appendix I Departmental letter on the sustainable harvest level and incidental mortality .......................59

GLOSSARY OF ACRONYMS .........................................................................................62


Membersofthepublicareinvitedtomakewrittensubmissionsonthisdraftallocationreport.Thosemakingsubmissionsareencouragedtomakereferencetotheparticularrecommendationorsectionofthereporttheywishtocommenton.Ifyoudisagreewithaparticularrecommendationorsection,trytosuggestalternativewaystoaddressorresolvetheissuesidentifiedinthereport.Clearreasonsshouldbeincludedinyourresponse,sothatyourviewscanbeproperlyconsidered.

TheIntegratedFisheriesAllocationAdvisoryCommittee(IFAAC)recognisesthatmanyabalonerecreationalfishersareofVietnameseorChineseethnicbackground,anddonotparticipateinotherrecreationalfishingadvisoryactivities.TheIFAACwilltakethisintoaccountwhendisseminatinginformationonitsdraftallocationreport,andhasdevelopedacommunicationplanthathasafocusonensuringthatrecreationalfishersfromallbackgroundsareincludedintheconsultativeprocess.

Asafirststep,aflyertranslatedintoChineseandVietnamesehasbeenpreparedinforminglicenseesoftheIntegratedFisheriesManagementprocessforabalone.Thisisbeingsentoutwithallrecreationalabalonelicencerenewalforms.

TheIFAACwillconsiderthecontentofallsubmissionsduringthepreparationofitsfinalreporttotheMinisterforFisheriesandmakechangestoits

initialpositionasrequired.AsummaryofallthesubmissionswillbeprovidedtotheMinisteratthetimetheIFAACsubmitsitsfinalreporttohim.

Afterthesubmissionperiodhasclosed,theIFAACmaywritetostakeholderswhohavelodgedawrittensubmission,invitingthemtospeaktothecommitteeinsupportoftheirsubmission.TheIFAACencouragesstakeholdersandotherstocommunicateamongthemselvesinthepreparationoftheirsubmissionsandwouldappreciatethelodgementofjointsubmissionsonparticularissues.

IftheIFAACreceivesasubmissionthatitconsidersrequiresfurtherconsultation,thecommitteewilldrawittotheattentionofallthosewhohavelodgedasubmissionorexpressedaninterestinreceivinginformation.

Submissionswillbetreatedaspublicdocuments,unlesstheIFAACisadvisedotherwise.Submissionsshouldbemadepriorto29December2006.TheIFAACwouldappreciatethelodgementofsubmissionselectronicallyusingthefollowingemailaddress:[email protected],theycanbesentto:

IFAACLockedBag39CloistersSquarePostOfficePERTHWA6850Fax:(08)94827224

MAKING A SUBMISSION

� INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

�.� RecommendationsRecommendation 1: AllocationsforabaloneshouldonlybeconsideredforRoe’sabalonewithinthePerthmetropolitanregion,thatistheregionbetweenMooreRivermouthandCapeBouvard(Area7ofthecommercialfishery).(p11)

Recommendation 2:Allocationsshouldnotbemadeonafinerspatialscale(subregions)withinthePerthmetropolitanregion.(P12)

Recommendation 3:ArecreationalzoneiscreatedbetweenMooreRiverandCapeBouvardsothatthecommercialandrecreationalsectorshavecommonboundariesoverthePerthmetropolitanregion.(p23)

Recommendation 4: ThebanoncommercialfishersfishingonthereeftopbetweenCapeBouvardandHillarysBoatHarbourshouldbeextendedfurthernorth.Thisrecommendationismadeinthelightoftheintegratedpackageproposedinthisreport.TheIFAACwouldwelcomecommentsonthisissue.(p25)

Recommendation 5: TheDepartmentofFisheriesinconsultationwiththerecreationalsectorintroduce,asamatterofpriority,managementarrangementsthatareaimedatreducingdiscardsofabaloneonthereefplatforminthePerthmetropolitanregion.(p27)

Recommendation 6: TheintroductionofproportionalallocationsforRoe’sabaloneinthePerthmetropolitanregionshouldbedeferreduntil:

• thereissufficientunderstandingofthecomparabilityofrecreationalandcommercialcatches;and

• fisherymanagershavegainedexperiencewithmanagingtherecreationalsectortoatotalallowablerecreationalcatchundertheproposedmoreflexiblemanagementarrangementsoutlinedinRecommendation13.(p30)

Recommendation 7:Untilproportionalallocationsareintroduced,sectorsshouldbemanagedtoensurethatthecatchtaken

1 IFAAC DRAFT RECOMMENDATIONS

byonesectorisnotreducingtheopportunityfortheothersectortotaketheaveragecatchittookovertheperiod1999-2003.(p30)

Recommendation 8:AtotalallowablerecreationalcatchshouldbeintroducedfortherecreationalsectorforRoe’sabaloneinthePerthmetropolitanregion.ThetotalallowablerecreationalcatchinthePerthmetropolitanregionshouldbebasedondataovertheperiod1999-2003.(p30)

Recommendation 9:ThecustomaryfishinginitialpriorityallocationforRoe’sabaloneinthePerthmetropolitanregionshouldbe200kg.(p32)

Recommendation 10: Whenatafuturetimeitbecomesappropriatetomanagetherecreationalandcommercialsectorsonafullyintegratedbasis,thenthestartingpointforproportionalallocationsinthePerthmetropolitanregionshouldbeanallocationof53percentfortherecreationalsectorand47percentforthecommercialsector.(p36)

Recommendation 11:AccesstoRoe’sabaloneinthePerthmetropolitanregionforaquaculturepurposesshouldonlybebyMinisterialexemption.Shouldtherebearegularandongoingneedtoaccesstheresource,thentheaquaculturesectorshouldmakeappropriatearrangementswiththecommercialsectorforaccesstobroodstock.(p36)

Recommendation 12: Whenatafuturetimeitbecomesappropriatetomanagetherecreationalandcommercialsectorsonafullyintegratedbasis,includingasufficientunderstandingofthecomparabilityofcatchesofthetwosectors,areallocationmechanismshouldbeintroduced.(p37)

Recommendation 13: TheDepartmentofFisheriesshouldworkwiththerecreationalsectortodevelopamanagementregimewhichwillreduceincidentalmortality,catchvariabilitybetweenyearsandimprovethesocialandeconomicbenefitsfromrecreationalfishing.(p38)


Recommendation 14:Giventhelowlevelofinterestshownbystakeholdersinnegotiatingsolutionstoresource-sharingconflictsoutsidethePerthmetropolitanregion,theDepartmentofFisheriesfacilitatenegotiationsbetweensectorsaimedatresolvingtheseconflicts.(p38)

Recommendation 15:Majorabaloneresource-sharingconflicts,outsidethePerthmetropolitanregion,thatremainunresolvedtwoyearsafterthedateofdecisionontherecommendationsinthisreportshouldbereferredtotheIFAACforresolution.(p38)

Recommendation 16: TheDepartmentofFisheriesshouldprogressivelydevelop,inconsultationwithstakeholders,thenecessaryregulatoryandconsultativestructuresthataccountfor:

• theneedtoincludepeopleofVietnameseandChinesebackgroundwhodonothaveregularcontactwiththeDepartmentofFisheries;

• thereconstitutionoftheabalonemanagementadvisorycommitteetodealequitablywithrecreationalandcommercialissuesandenablenegotiationswithinandbetweenthesectors;and

• theneedtogiveeffecttotheGovernment’sIFMpoliciescontainedinguidingprinciplesviiandx(seesection3.1.2).(p40)

�.� Items to NoteThenotesinthissectionprovideadditionalinformationforthereaderregardingtheIFAAC’sdeliberationsonallocationsforabalone:

Note �:

TheMinisterisnotseekingadvicefromIFAACregardinganallocationfornon-extractiveusersoftheresource.InaccordancewiththeMinister’spositiononthismatter,theIFAACwillnotberecommendinganallocationtonon-extractiveusers.

Note �:

TheMinisterforFisherieshasadvisedIFAACthatthereshouldbeanallocationforcustomaryfishing,andthatcustomaryfishingaccessrightsshouldbegivenpriorityoverallotherfishingaccess.

Note �:

TheIFAACdoesnotexpectthatitwillbeprovidingadviceonallocationsforabaloneoutsidethePerthmetropolitanregionuntilatleast2009.

Note �:

Allocationsmayneedfurtheradjustmentifmoreaccurateinformationbecomesavailableontherecreationalcatch,howevertheperiodforadjustmentshouldnotextendfiveyearsbeyondthedateofallocations.TheIFAACseekssubmissionsonhowthismightbecarriedout.

Note �:

TheIFAACwouldwelcomecommentsonrelevanteconomic,social,culturalandenvironmentalissuesandhowthesemightbeincorporatedintoallocationdecisionstoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseofabalonestocks.

Note 6:

RecreationalfishingbyIndigenouspeople-asdistinctfromcustomaryfishingbyIndigenouspeople-isconsideredtobepartoftherecreationalallocation.

Note 7:

TheIFAACwelcomesfurtherinformationonthecustomarytakeofabalonebyIndigenouspeoplethroughsubmissionsonthisreport.Wherethereislikelytobeasignificantcustomarytake,thedemandsofIFM(IFMGovernmentPolicy,paragraph18,AppendixA)willnecessarilyrequiremoreresearchandmonitoringofthecustomarytakebyIndigenouspeople.

Note 8:

Thecreationofanewmid-westrecreationalzonenorthofthenewPerthmetropolitanregionshouldbediscusseddirectlybetweentheDepartmentofFisheriesandtherecreationalsector,with‘input’fromthecommercialsector.

6 INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

IntegratedFisheriesManagement(IFM)isaninitiativeaimedataddressingtheissueofhowfishresourcesinWesternAustraliacanbebestsharedbetweencompetinguserswithinthebroadcontextof“EcologicallySustainableDevelopment”,orESD.

TheMinisterforFisheriesestablishedtheIntegratedFisheriesManagementAllocationAdvisoryCommittee(IFAAC),underSection42oftheFishResourcesManagementAct1994(FRMA),in2004toinvestigateIFMresourceallocationissuesandmakerecommendationstohimonoptimalresourceuse.

TheIFAAChaspreparedthisreport,whichdocumentsthecommittee’sinitialpositiononallocationsfortheabaloneresource,alongwiththereasonsforitsconclusionsasabasisforwidespreadcommunityconsultation.ThisreportfollowstheIFAAC’spreliminaryinvestigationoftheabaloneresource-sharingissuesandconsultationwithstakeholders.

Thereportisbeingreleasedforathree-monthpubliccommentperiodtofacilitatediscussionandencouragecommentonhowtheabaloneresourceshouldbesharedbetweencompetingusers(Indigenous,recreationalandcommercial).Attheconclusionofthecommentperiod,theIFAACwillconsiderallsubmissionsandfinaliseitsadvicetotheMinisterforFisheriesonallocationsfortheabaloneresource.

TheIFAACexpectstoprovidethisadvicein2006.

FollowingthereceiptoftheIFAAC’sadvice,theMinisterforFisheries,consistentwiththeGovernment’spolicy,willdeterminetheallocationstosectors.

2 INTRODUCTION

ROE’S ABALONE – PERTH METROPOLITAN REGION 7

ThemostrecentdevelopmentinthemanagementoffisheriesinWesternAustraliaistheintroductionofIFM.

Insummary,IFMinvolves:

· settingthetotalsustainableharvestlevel(SHL)ofeachresourcethatallowsforanecologicallysustainableleveloffishing;

· allocatingexplicitcatchsharesforusebycustomary,recreationalandcommercialfishers;

· continualmonitoringofeachsector’scatch;

· managingeachsectorwithinitsallocatedcatchshare;and

· developingmechanismstoenablethereallocationofcatchsharesbetweensectors.

�.� The IFAACThemembersoftheIFAACareMrJimMcKiernan(Chair),MrNormanHalseandProfessorGeorgeKailis.

MrMcKiernanrepresentedWesternAustraliaintheAustralianParliamentfornearly18years.DuringthistimeheserveduponandwaschairofanumberofSenateandotherParliamentarycommittees.MrMcKiernanhasconsiderableexperienceininteractingwithcommunitygroupsandstakeholders.HeisasessionalmemberoftheStateAdministrativeTribunal,aJusticeofthePeaceandamemberoftheBoardoftheDisabilityServicesCommission.MrMcKiernanreplacedMrMurrayJorgensenastheChairoftheIFAACon1March2006.

ProfessorGeorgeKailisisProfessorofManagementattheUniversityofNotreDameandisaDirectoroftheMGKailisGroup.Hehashadextensiveexperienceongovernment,scienceandindustrybodiesatastate,nationalandinternationallevel.ProfessorKailisiscurrentlychairoftheAustralianSeafoodIndustryCouncilNativeTitleWorkingGroup,andamemberofthePearlingIndustryAdvisoryCommittee.HehaspreviouslybeenDirectorofboththeAustralianFisheriesManagementAuthority,andtheFisheriesResearchandDevelopmentCorporation.

MrNormanHalseisakeenrecreationalfisher,conservationistandresearcher.MrHalseworkedforWesternAustralia’sDepartmentofAgriculturefor40years,hiscareerculminatingasthatorganisation’sDirectorGeneral.HisconservationinterestsincludedservingasapastpresidentoftheConservationCouncilofWA,aschairoftheNationalParksandConservationAuthorityandasamemberoftheEnvironmentalProtectionAuthority.MrHalsehasastronginterestinrecreationalfishing,whichisdemonstratedbyhisserviceasapastchair,andcurrentboardmember,ofpeakbodyRecfishwest.

�.�.� Conflict of interest

IfamemberhadaconflictofinterestinanymattertobeconsideredbytheIFAAC,thememberdisclosedtheinterest,thedisclosurewasrecordedintheminutesofthecommitteeandthememberdidnotvoteonthematter.

NomembersoftheIFAACholdarecreationalorcommercialfishinglicencethatentitlesthemtofishforabalone.

�.�.� Guiding principles

TheMinisterprovidedtheIFAACwiththefollowingGuidingPrinciplesandTermsofReference.

Governmenthasadoptedtheprinciples,outlinedbelow,asthebasisforIFM(AppendixA).TheIFAACshouldensurethatanyadvicetotheMinisterforFisheriesisconsistentwiththeseprinciples:

i. FishresourcesareacommonpropertyresourcemanagedbytheGovernmentforthebenefitofpresentandfuturegenerations.

ii. Sustainabilityisparamountandecologicalrequirementsmustbeconsideredinthedeterminationofappropriateharvestlevels.

iii. Decisionsmustbemadeonthebestavailableinformationandwherethisinformationisuncertain,unreliable,inadequateornotavailable,aprecautionaryapproachadoptedtomanagerisktofishstocks,marinecommunitiesandtheenvironment.Theabsenceof,oranyuncertaintyin,informationshouldnotbeused

3 BACKGROUND


asareasonfordelayingorfailingtomakeadecision.

iv. Aharvestlevel,thatincorporatestotalmortality,shouldbesetforeachfishery1andtheallocationdesignatedforusebyeachgroupshouldbemadeexplicit.

v. Allocationstousergroupsshouldaccountforthetotalmortalityoffishresourcesresultingfromtheactivitiesofeachgroup,includingbycatchandmortalityofreleasedfish.

vi. Thetotalharvestacrossallusergroupsshouldnotexceedtheprescribedharvestlevel.Ifthisoccurs,stepsconsistentwiththeimpactsofeachusergroupshouldbetakentoreducethetaketoalevelthatdoesnotcompromisefuturesustainability.

vii. Appropriatemanagementstructuresandprocessesshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation.Theseshouldincorporatepre-determinedactionsthatareinvokedifausergroup’scatchincreasesaboveitsallocation.

viii. AllocationdecisionsshouldaimtoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseoffishstocksandtakeaccountofeconomic,social,culturalandenvironmentalfactors.Realistically,thiswilltaketimetoachieveandtheimplementationoftheseobjectivesislikelytobeincrementalovertime.

ix. Allocationstousergroupsshouldgenerallybemadeonaproportionalbasistoaccountfornaturalvariationsinfishpopulations.Thisgeneralprincipleshouldnothoweverprecludealternativearrangementsinafisherywherepriorityaccessforaparticularusergroup(orgroups)maybedetermined.Itshouldremainopentogovernmentpolicytodeterminethepriorityuseoffishresourceswherethereisaclearcasetodoso.

x. Managementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation.Thereshouldbealimitedcapacityfortransferringallocationsun-utilisedbyasectorforthatsector’suseinfutureyears,providedtheoutcomedoesnotaffectresourcesustainability.

�.�.� The IFAAC’s terms of reference

Takingintoaccounttheprinciplesdetailedabove,theIFAACistoinvestigatefisheriesresourceallocationsissues,andprovideadviceandrecommendationstotheMinisteronmattersrelatedtooptimalresourceuse.Inparticular,theIFAACwillprovideadviceon:

i. allocationsbetweengroups(sectors)withintheharvestlimitsdeterminedforeachfishery;

ii. strategiestoovercomeallocationandaccessissuesarisingfromtemporalandspatialcompetitionforfishatalocal/regionallevel;

iii. allocationissueswithinafisheriessectorasreferredbytheMinisterforFisheries;

iv. morespecificprinciples(thandetailedabove)toprovidefurtherguidancearoundallocationdecisionsforindividualfisheries;and

v. othermattersconcerningtheintegratedmanagementoffisheriesasreferredbytheMinisterforFisheries.

Inthefirstinstance,theMinisterforFisherieshasrequestedtheIFAACtoprovideadviceandrecommendationsonallocationsfortheWestCoastRockLobsterFishery,theAbaloneFishery(withemphasisonthePerthmetropolitanregion)andtheWestCoastDemersalScalefishFishery(withemphasisondhufish,baldchingroperandsnapper).

TheIFMGovernmentPolicyreleasedinOctober2004(AppendixA)hasbeentheprincipalsourceofguidancefortheIFAACindevelopingitsrecommendationsonsectoralallocations.TheMinisterforFisherieshasalsoprovidedtheIFAACwithadditionaladviceonvariousIFMissues,whichithastakenintoaccountinitsdeliberations.Theseissuesarediscussedinsection3.2.

UndertheIFMGovernmentPolicy(Paragraph11,AppendixA),theMinisterdeterminestheprocessandtimeframesforresolvingallocationsofeachfishresourcesbasedontheadviceoftheIFAAC.TheMinisterhasapprovedafour-stageIFMallocationprocessdevelopedbytheIFAAC(AppendixB).Thefourstagesinvolve:

A. Determiningtheneedforaformalallocationprocessinafishery.

B. DevelopmentofanIntegratedFisheriesManagementResourceReportbytheDepartmentofFisheries.

1 FisheryisdefinedundertheFRMAasoneormorestocksorpartsofstocksoffishthatcanbetreatedasaunitforthepurposesofconservationormanagement;andaclassoffishingactivitiesinrespectofthosestocksorpartsofstocksoffish.


C. Theintegratedfisheriesallocationprocess,whichincludes:

Step1. Investigationoftheallocationissue;

Step2. IFAACsettlingadraftallocationreportandreleasingitforpubliccomment;

Step3. IFAACrecommendingallocationstotheMinisterforFisheries;and

Step4. TheMinisterdeterminingallocations.

D. Determiningmechanismsforfutureallocationsbetweensectors.

Inthecaseoftheabaloneresource,thefirststage(pointAabove)oftheprocesswasunnecessary,astheMinisterforFisherieshasalreadyrequestedthattheIFAACprovidehimwithadviceandrecommendationsonallocations.

ThesecondstageoftheprocessforabalonewascompletedinNovember2005,whentheDepartmentofFisheriesreleasedFisheriesManagementPaperNo204,IntegratedFisheriesManagementReportAbaloneResource(FMP204),(DepartmentofFisheries,2005).FMP204hasbeentheprincipalsourceofinformationusedbytheIFAACinitsconsiderationoftheallocationsfortheabaloneresource(seeBox1).

Duringitsinvestigationofallocationissues(StageC,Step1oftheprocess–seeabove)theIFAACsoughtwrittensubmissionsfromkeystakeholdersonissuesrelatedtoallocationandprovidedanopportunityforthemtomakeaverbalpresentationtothecommittee.Informationonwheretoobtaincopiesofstakeholder’ssubmissionsareprovidedinAppendixC.

TheIFAACacknowledgesthatnotallstakeholdershavehadanopportunitytomakesubmissions.Inthecaseofabalone,theIFAACismindfulofadvicebythestakeholdersconsultedthatmanyrecreationalparticipantsinthisfisherymaynotbeactiveinexistingconsultativearrangementsandthatgreatcautionneedstobetakeninrelationtoeffectiveconsultation.Inaddition,nosubmissionswerereceivedinrelationtotheIndigenoussector.

Giventheaboveconsiderations,therecommendationsinthisdraftallocationreportshouldbetakenonlyastheinitialviewoftheIFAAC,publishedtoassistindebateandinguidingthoseinterestedinmakingasubmissiontotheIFAAC.

�.� Ministerial AdviceInadditiontousingtheIFMGovernmentPolicy(AppendixA)initsdeliberations,theIFAAChasbeenprovidedadditionalguidancebytheMinisterforFisherieson

• anIndigenousallocation;thereferenceperiod1997-2001;

• onallocationstonon-extractiveuses;and

• theareaoverwhichallocationsshouldbemadeforabalone.

ThisadviceandtheIFAAC’sresponsearesummarisedbelow.

�.�.� Customary allocation

TheMinisterforFisheriesprovidedguidancewithrespecttothecustomaryfishingsectorinalettertotheIFAAC(seeAppendixD).ThekeypointtheMinistermadeinhisletterwasthatheexpectedthattheIFAACwouldrecommendsomeallocationforcustomaryfishingofinshorefishspecies.

TheMinisteralsonotedthathesupportedrecommendation13ofthedraftAboriginalFishingStrategy,whichstates:

WithinanygivenfisheriesallocationframeworkdevelopedinWesternAustralia,customaryfishingaccessrightsshouldbegivenpriorityoverallotherfishingaccess,includingcommercialandrecreationalfishing.

CustomaryfishingwasdescribedbytheMinisterasthefishingactivityofIndigenouspeoplewhohavearight(inaccordancewithAboriginallawandcustoms)tofishinacustomarymanner.HecommentedfurtherthatnotallIndigenouspeoplearepermittedtoundertakecustomaryfishinginallareasofthestateunderAboriginallawandcustom.

Note �:

TheMinisterforFisheries’hasadvisedIFAACthatthereshouldbeanallocationforcustomaryfishing,andthatcustomaryfishingaccessrightsshouldbegivenpriorityoverallotherfishingaccess.

�0 INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

�.�.� Formalising catch shares over the period ��7–�00�

Paragraph19oftheGovernment’sIFMpolicyreferstoformalisingexistingcatchsharesasabasisforfutureallocationdiscussionsusingthebestavailablecatchinformationoverthefiveyearperiod1997-2001.Thereareanumberofissuesthatareassociatedwithusingthe1997-2001periodtoformalisecatchsharesincluding

a. thepoorqualityandavailabilityofcatchdata(particularlyfortherecreationalsector);

b. theperiod1997-2001willbeincreasinglyfurtherawayfromthedateofdeterminationofallocations;and

c. Itisarguablethatparagraph19couldbeinterpretedtosimplymeanthatitisjustamatterofestimatingthecatchsharesovertheperiod1997-2001usingtheavailabledate

Box 1 Fisheries Management Paper �0�AnIFMreportfortheabaloneresource,FisheriesManagementPaperNo204(FMP204)wasreleasedbytheDepartmentofFisheriesinNovember2005.ThepaperincludesareportonthesustainabilityofthefisheryandinformationthataddressesthebroaderrequirementsforreportingunderanEcologicallySustainableDevelopmentframework.

OtherkeydocumentsonabalonesustainabilityincludetheDepartmentofFisheries’annual‘StateoftheFisheries’reportandtheAbaloneSustainabilityReportpreparedbytheDepartmentofFisheriesfortheCommonwealthDepartmentofEnvironmentandHeritage(DepartmentofFisheries,2002).

TheExecutiveDirector,DepartmentofFisheries,undertheIFMpolicyhastheresponsibilityforapprovingasustainabilityreportforeachfisherywhichincludesaclearstatementonthesustainableharvestlevels(SHL).ASHLof77tonnes(range73to83tonnes)hasbeengivenforRoe’sabaloneinthePerthmetropolitanarea(seesection8.7ofFMP204).Sustainableharvestlevelshavenotbeenprovidedforanyofthecommerciallyimportantabalonespecies(greenlip,brownlipandRoe’sabalone)outsideofthePerthmetropolitanarea.

ThemanagementarrangementsintroducedtoprohibitcommercialfishingonthereefplatformbetweenCapeBouvardandHillarysBoatHarbourmeanthatthecommercialsector’sfishingeffortisconcentratedontheseawardsideofthereefplatform.Mostoftherecreationalfishingeffortisconcentratedonthereefplatform,althoughasmallpercentageofrecreationaldiverstakeabaloneindeeperwater.TherecreationalandcommercialsectorsarelargelyspatiallyseparatedinmostofthePerthmetropolitanarea,althoughtheyshareacommonstock.Thecommercialsectoralsotakesalargersizedanimals(greaterthan70mm)comparedtotherecreationalsector(greaterthan60mm).

Thereisnorestrictiononthetotalcatchtakenbytherecreationalsector,asthereisnolimitonthenumberoflicensesissued.However,thereareotherfactorsthatlimittheopportunityforrecreationalfisherstotakeabalone,suchastheverylimitedfishingperiod,bagandsizelimitsandweatherconditions.

ThecommercialsectorhasbeenmanagedinthePerthmetropolitanregiontoaquotaof36tonnessince1997.Overthatperiod,therecreationalsector’scatchonthesixSundaysthatrecreationalfishershavebeenallowedtofishhasvariedbetween32tonnesand46tonnes,accordingtorecruitmentlevelsandtheprevailingweatherconditions.

TheindicatorsusedtoassessthestatusofRoe’sabalonestockstargetedbythecommercialsectorinthePerthmetropolitanregioninclude:whetherthequotahasbeenachieved,theeffortrequiredtoachievethequota,andcatchrates.Commercialcatchrateswererelativelystableovertheperiod1999-2003,butin2004thequotawastakenatahistoricallyhighcatchrate.

ThestatusofRoe’sabalonestockstargetedbytherecreationalsectorinthePerthmetropolitanareainvolvessamplingeightsites.Thesamplinginvolvesrecordingtheabundanceandsizeofabalonealongtransectsfromtheshoretotheouteredgeofthereefplatform.AdetaileddescriptionofthestockassessmentisprovidedintheStateoftheFisheries2003/04Report.

Source: Department of Fisheries, Government of Western Australia

ROE’S ABALONE – PERTH METROPOLITAN REGION ��

andmakingdeterminationsbasedonthatcalculation.

Following,theconsiderationofadvicefromIFAAConthisissue,theMinisterapprovedtheIFAAC:

1. Makinganassessmentof1997-2001catchshares,asabasisforfutureallocationdiscussions(Paragraph19,IFMGovernmentPolicy,AppendixA).

2. ApplyingthebroaderprinciplesintheIFMGovernmentPolicy,inparticularParagraph5(Paragraph5containstheGuidingPrincipleswhicharereproducedatsection3.1.2).

�.�.� Allocation to the non-fishing sector

TheMinisterforFisherieshasadvisedtheIFAACthathedoesnotexpecttobeprovidedwitharecommendationonallocationstonon-extractiveusersoftheresource.

Specifically,theMinisterhasadvisedthecommitteethat:

1. TheIFMinitiativewasdesignedtodetermineallocationsbetweencustomary,recreational(includingcharter)andcommercialsectorsthatareextractiveusers.

2. HewasnotseekingarecommendationfromtheIFAAConallocationstonon-extractiveusersoffishresources(AppendixE).

Note �:

TheMinisterisnotseekingadvicefromIFAACregardinganallocationfornon-extractiveusersoftheresource.InaccordancewiththeMinister’spositiononthismatter,theIFAACwillnotberecommendinganallocationtonon-extractiveusers.

�.�.� Regions over which allocations should be made

TheIFAAC,havingundertakenapreliminaryinvestigationoftheallocationissuesforabaloneandconsideredtheinformationcontainedinFMP204,formedtheviewthattherewasinsufficientreliabledataavailableforittomakearecommendationonallocationsofabaloneoutsidethePerthmetropolitanregion.Accordingly,theIFAACsoughttheMinister’sapprovaltorestrictitsadviceonallocationstoRoe’sabaloneinthePerthmetropolitanregiononly(fromMooreRivertoCapeBouvard-seeFigure1).

TheMinisterapprovedthecommitteelimitingitsadviceonproportionalallocationstoRoe’sabaloneinthePerthmetropolitanregion,butalsoinformedthecommitteehewaspreparedtoreceiveadviceonarrangementsbroadlysupportedbystakeholdersforresolvingresource-sharingissuesoutsidethePerthmetropolitanregion(AppendixF).TheIFAAChasadvisedstakeholdersoftheMinister’sapproval.

TheIFAACsubsequentlysoughtadvicefromtheDepartmentofFisheriesastowhenadequateinformationwouldbeavailabletocomparerecreationalandcommercialcatchesoutsidethePerthmetropolitanregion.TheDepartment’sadvicewasthatthiswouldnotbeforanotherthreeyears.ThecommitteedoesnotexpecttobeinapositiontoprovideadviceonallocationsoutsidethePerthmetropolitanregionuntilatleast2009.

Recommendation 1: Allocations for abalone should only be considered for Roe’s abalone within the Perth metropolitan region, that is the region between Moore River mouth and Cape Bouvard (Area 7 of the commercial fishery).

Note �:

TheIFAACdoesnotexpectthatitwillbeprovidingadviceonallocationsforabaloneoutsidethePerthmetropolitanregionuntilatleast2009.

�.�.� Allocations by subregions within the Perth metropolitan region

ThePerthmetropolitanregionhasbeenfurthersubdividedintothreesubregionstoprovideacontextfordiscussingthemanagementofthefisheryatafinerspatialscale.Thesesubregionsareknownasnorth,centralandsouth(seeFigure2).

Theproportionsofthetotalcatchhavevariedhistoricallybetweenthesesubregions.Forexample,therecreationalsectorhastakenonaverage70.5percentofthecatchinthecentralsubregion,butonly12.5percentinthesouth,whereasinthenorthernsubregionthecatchissharedaboutequallybetweenthetwosectors(Table3).

Althoughthesubregionsdonotexistinlegislation,theypotentiallyprovideaframeworkfordeterminingallocationsonafinerspatialscale.TheIFAACthereforeundertooktoexploretheissuefurther.

TheDepartmentofFisheriesinitssubmissionidentifiedallocationsbysubregionsashavinganumberofdisadvantages.TheDepartmentbelieved

�� INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

thatallocationsbysubregionwoulddisadvantagethecommercialsectorbecausetheywould:limitmanagementflexibility,increasethecomplexityinvolvedinsettingTotalAllowableCommercialCatches(TACCs),managingTACCs,andallocatingaccesstocommercialfishers.Fortherecreationalsector,theDepartmentbelievedmanagementbysubregionwouldcomplicatethereal-timemanagementandmonitoringoftherecreationalcatch.

Theoretically,managementbysubregionwasnotconsideredpracticalbytheDepartmentunlesstherewaspreparednessbysectorstoaccept,forexample,aclosuretocommercialfishinginthecentralsubregionandaclosuretorecreationalfishinginthesouthernsubregion.Inthisway,thenorthernsubregionwouldbetheonlyareamanagedtoproportionalallocations.

TheIFAAC,afterinitialconsiderationoftheDepartmentofFisheries’submission,soughtadditionaladvicefromtheDepartmentonallocationsbysubregionssoitcouldinvestigatetheissuemorethoroughly.TheDepartment’sresponsetoIFAAC’srequestisprovidedatAppendixG.TheDepartment’sadviceisthatitcannotenvisionascenariounderwhichthePerthmetropolitanfisherywouldbenefitbyhavingshareallocationsandsubsequentmanagementarrangementsmadeonasubregionalbasis.

InformingitspositiononthismattertheIFAACtookintoaccountthat:

• ThemanagementofallocationsbysubregionhadtheadvantagethatitwouldmorecloselymatchthehistoricalvariabilityincatchproportionsoverthePerthmetropolitanregion,andhadthepotentialtosimplifymanagementifstakeholderswereagreeabletomanagementchangesinthefuturesuchashavingrecreationalandcommercialonlyfishingareas.

• Noneofthestakeholdersintheirsubmissionswerepromotingallocationsbysubregion.

• TheDepartmentidentifiedanumberofdisadvantagesthatwouldarisefrommanagingallocationsbysubregions.

Aftertakingintoaccounttheaboveandexaminingalltheavailableinformation,theIFAACwassatisfied

thatthedisadvantagesofallocatingcatchsharesbysubregionsoutweighedtheadvantages.TheIFAACresolvedtorecommendthatallocationsshouldnotbemadebysubregion.

Recommendation 2: Allocations should not be made on a finer spatial scale (subregions) within the Perth metropolitan region.

�.� Additional Guiding Principles Adopted by the IFAAC

TheIFAACwill,inaccordancewithitstermsofreference,bemakingrecommendationsoninitialallocationsforabalonetoeachofthesectors.OtherallocationprinciplesthattheIFAAChasconsidered,orthathavebeenbroughttotheIFAAC’sattentioninadditiontothosereferredtopreviously(sections3.1.2and3.1.3)thathaveabearingonitsdeliberations,arediscussedbelow.

TheIFAACwasguidedbythefollowingadditionalprinciplesinrelationtoconsideringallocationoptions,whichitdevelopedwhenconsideringallocationsforwesternrocklobster.

i. Theapproachshouldbepragmaticandincremental.

ii. Therewasaneedtomakeanexplicitallocation(asdistinctfrommakingageneralstatementofprincipleabouthowallocationsshouldbemade).

iii. Allocationsshouldnothavetheeffectofmerelydeferringadecisionindefinitely.

iv. Recommendationsthatamounttoachangetocatchsharesasassessedinthe1997–2001period2needtobeexplainedonthebasisofthe‘GuidingPrinciples’,(particularlyGuidingPrincipleviii,seesection3.1.2).

v. Thatuntiltherearere-allocationmechanisms,theIFAACshouldbecautiousinmakingrecommendationsthatwouldhavetheeffectofimmediatelyandsignificantlyimpactingonasector.

�.�.� Catch data uncertainty

Thecatchinformationfromthecommercialsectorstate-wideisconsideredtobeaccuratebecause

2 TheIFMGovernmentPolicy,19(AppendixA)statescatchshares:“willbeformalisedusingthebestavailableinformationduringthefive-yearperiodfrom1997-2001”.TheIFAAChasinterpretedtheintentionexpressedinthequoteaboveasthatthestatus quoasat1997-2001shouldbethebaseoffutureallocationdiscussions.


itismanagedunderaquotamanagementsystemthatistightlycontrolledandmonitored.Thecatchinformationfortherecreationalsectorislessaccuratebecauseitisestimatedindirectlyfromsurveysofrecreationalfishers,andthereforethereareerrorsassociatedwiththeseestimates.

Therecreationalsector’scatchestimatesareconsideredtobemoreaccurateinthePerthmetropolitanregioncomparedwithotherregionsbecausethreesurveymethods3havebeenused:onewhichinvolvesdirectobservationofrecreationalfishingactivityandtheotherwhichusesatelephonerecallsurvey.TherecreationalabalonecatchestimatesoutsidethePerthmetropolitanregionarenotconsideredreliableenoughtouseforallocationpurposesatthistime(seesection3.2.4).

Illegalcatcheswouldmeanthatthecatchesareunderestimated.Theamountbywhichtheymaybeunderestimatedisunknown(seepage58ofFMP204foradiscussionoftheillegaltakeofabalone).

IntheeventthatthecatchinformationusedbytheIFAACinmakingrecommendationsonallocationstothesectorsisshowntohavebeeninerror,thenthisisasufficientlyrelevantconsiderationtowarranttheadjustmentoftheinitialallocationunderIFM.Thereis,however,alsoacompellingpublicinteresttoprovidelong-termcertaintyunderIFM.

Accordingly,thisopportunityforadjustmentshouldnotcontinueindefinitelyandareasonable‘sunsetperiod’offiveyearsshouldbesufficientforthispurpose.TheIFAACwouldbeinterestedinreceivingsubmissionsonhowanysuchadjustmentmightbeundertaken.

Note �:

Allocationsmayneedfurtheradjustmentifmoreaccurateinformationbecomesavailableontherecreationalcatch,howevertheperiodforadjustmentshouldnotextendfiveyearsbeyondthedateofallocations.TheIFAACseekssubmissionsonhowthismightbecarriedout.

�.�.� Optimising the benefit to the community

Guidingpolicyviii(seesection3.1.2)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.

ThePerthmetropolitanabalonefisherywasoneofthreefisheriesusedascasestudiesinaresearchprojecttitled“ASocio-economicValuationofResourceAllocationOptionsbetweenCommercialandRecreationalUse”(McLeodandNicholls,2004).

Theresultsofthestudypointedtoasmallreallocationofcatchtotherecreationalsectorinordertomaximisetheneteconomicbenefitsfromtheusetheresource.However,theauthorscautionedagainstusingtheresultsbecausesomeoftheunderlyingassumptionsregardingtheuseoftheresourcebytherecreationalsectorwerenotmet(seeFMP204,page47).

Akeymessagefromtheauthorswasthatopportunitiesexistedtoincreasethebenefitstotherecreationalsectorwithinexistingconstraints.Thiscouldbeachievedbyredistributingtheallowablecatchamongstindividualrecreationalfishers,soastomorecloselymatchtheirindividualpreferences.

Inter-sectoralallocationshouldbeconsideredfurtheraftermoreflexiblearrangementsforrecreationalfishershavebeenestablishedandoperatedforatimelongenoughtoallowrecreationalnetbenefitstobeoptimised

Someofthesocio-economicdataavailableonthePerthmetropolitanfisheryprovidedbytheDepartmentofFisheriesisprovidedbelow.

ThirteenlicenseesareentitledtotakeRoe’sabalonecommerciallyinthePerthmetropolitanregion.Astwopeopleoperateeachlicence,about26peopleareinvolveddirectlyincommercialdivingoperations.

From1997thecommercialsectorhashaditscatchfixedatamaximumamountof36tonne,whiletherecreationalcatchestimatehasvariedbetween32and46tonne(Table1).TheDepartmentofFisheries,initssubmissiontotheIFAAC,reportedthegrossvalueofcommercialproductionfromthePerthmetropolitanregionwasabout$1.39million.

ThePerthmetropolitanregionabaloneresourcewasratedbytheAbaloneIndustryofWAasmore

3 Athirdsurveyusingaphonediarymethodwasintroducedin2004.


importanttocommercialRoe’sabalonediversbecauseofthe:

• proximitytoinfrastructure;

• proximitytoresidentialaddressesofdivers;and

• higherqualityofabalone.

TheDepartmentestimatesthat21,000(13,000umbrellaand8,000specific)recreationallicenseesareentitledtotakeRoe’sabaloneinthePerthmetropolitanregion.Ofthese21,000licensees,theDepartmentestimatesover5,000(DepartmentofFisheriessubmissiontoIFAAC)actuallyfishinthePerthmetropolitanregion.

Abalonespecificlicences,at$36perlicence,generateover$290,000inrevenue,whereasumbrellalicencesat$72perlicencegenerateover$900,000inrevenue.BasedonanestimatefromtheDepartmentofFisheriesofthenumberofumbrellalicenseesthatfishforabalone,around$440,000inrevenueisraisedstate-widefromabalonelicencesales(DepartmentofFisheriessubmission).

Therecreationalcatch(intonnes)hasnotshownanycleargrowthtrendoverthatperiod1997to2004(Figure6,FMP204,page54).However,astheWesternAustralianpopulationgrows(expectedtodoubleby2030)newfisherswillwanttoparticipateinthefishery,sothereisanexpectationthatthiswillleadtoincreasedcompetitionforRoe’sabaloneinthePerthmetropolitanregion.

NospecificmentionismadeinFMP204ofculturalfactors,otherthanthoserelatingtocustomaryfishing.TherearenoknowncoastalmiddensintheareabetweenMooreRiveandCapeNaturaliste,althoughthereisevidencefromarchaeologicalstudiesofcoastalmiddensinotherlocationsthatIndigenouspeopleateabalone.

Recently,evidencehasbeengiveninaNativeTitleTribunalclaimhearingthatabalonewerecollectedbyIndigenouspeopleonthesouthcoast(seeFMP204,page56).

TheIFAACisoftheviewthatenvironmentalfactorsaretakenintoaccountinsettingtheTACCandmorerecentlythesustainableharvestlevel(SHL).AfullexaminationoftheecologicalimpactsoftheabalonemanagedfisherywasundertakenasarequirementforexportapprovalundertheEnvironmental Protection and Biodiversity Conservation Act 1999(seePage40ofFMP204).Thefisherywasfoundto

besustainablymanagedandreceivedexportapprovalfromtheCommenwealth.

Insummary:

• AbalonehavebeenacomponentofthedietofIndigenouspeople,butthereisalackofdataontheactualamounttakenandparticipationofIndigenouspeopleincustomaryfishingandvaluetothesepeople.

• Therecreationalfisheryforabalonecreatesasocialbenefittoalargenumberofpeople.

• Asocio-economicstudyoftheabalonefisherysuggeststhatopportunitiesexisttoincreasethebenefitstorecreationalfisherswithinexistingcatchconstraints.

• TheRoe’sabalonecommercialfisheryinthePerthmetropolitanregionisavaluablefishery[GrossValueofProduction(GVP)of$1.39million]andcreateseconomicandsocialbenefitstothatsectionofthecommunityinvolvedintheindustry.

Note �:

TheIFAACwouldwelcomecommentsonrelevanteconomic,social,culturalandenvironmentalissuesandhowthesemightbeincorporatedintoallocationdecisionstoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseofabalonestocks.

Intheabsenceofappropriateinformation,theIFAACdidnotfinditpossibletocometoanyconclusionontheallocationsthatoptimisedthesocial,economic,culturalandenvironmentalbenefitstothecommunityfromtheuseoftheresource.Followingdiscussionswiththeauthorsofthesocio-economicstudy,theIFAACformedaviewthattheeconomicbenefitswereclosetobeingmaximisedunderthecurrentmanagementregime.

Nevertheless,theprinciplesofIFMmakeitclearthatspecificsharesforeachsectorshouldbedetermined.TheIFMprocessrequiresanallocationtoeachsectorsothattheresponsibilityforsustainablemanagementcanbefairlyapportionedbetweensectors.

ThisIFMallocationisseenasanessentialfirststepthatwillfacilitateprogresstowardtheobjectivesoutlinedintheIFMGovernmentPolicy.TheGovernment’spolicyrecognisestheproblemoflack


ofinformationonsocial,economic,culturalandenvironmentalfactors(seeGuidingprincipleviii,section3.1.2).

�.� Description of the Fishery

InthewatersnearPerth,Roe’sabaloneoccupytheintertidalandsubtidallimestonereefsofboththemainlandandoffshoreislands.Theyalsooccuronsomeoffshorereefs.

Densitiesarehighestattheseawardedgeofthereefplatformanddroptolowlevelsbyabout1.5metresdepthonthesubtidalcliffattheseawardedgeofthereef.Densitiesdeclinemoregraduallyshorewardfromtheouteredgeofthereefplatform.

Roe’sabalonegrowstoamaximumsizeof120mmandthemeansizetendstoincreasesubtidallyandshorewardfromtheseawardedgeofthereefplatform(HancockandCaputi,inpress).

LarvaldispersalforRoe’sabaloneoccursoverarelativelysmallrange.Examinationofthestockstructurehasdemonstratedthatpopulationscanbegeneticallydifferentwhenthegapbetweenreefsislessthan13km(Hancock2000).Inpracticalterms,thismeansthatlarvaefromaRoe’sabalonecolonyisunlikelytorepopulateanotherreef(withasuitablehabitat)iftheunpopulatedreefisgreaterthan13kmaway.

Thewestcoastrecreationalfisheryzone,whichincludesthePerthmetropolitanfishery,extendsfromGreenoughRivermouthtoBusseltonJetty(Figure1).TheRoe’sabalonecommercialfishery,describedas“Area7”inthemanagementplan4forthecommercialfishery,extendsfromthemouthofMooreRivertoCapeBouvard(Figure1).

ThecommercialsectorisprohibitedfromfishingintheareaaroundRottnestIslandandtheCottesloeareaofthemainlandcoast.Cottesloewasclosedtorecreationalfishersin2003.

TheareaaroundPenguinIsland(Figure2)wasclosedtorecreationalfishersfrom1996to1999,butremainedopentosomecommercialfishing.

CommercialdiversarenotpermittedtostandorremainonthereeftopwhilefishingforabalonebetweenHillarysBoatHarbourandCapeBouvard.CommercialfishingforRoe’sabaloneisnotpermittedbetweenNorthMoleatFremantleandTriggIsland.

4ThemanagementplancanbeobtainedfromtheDepartmentofFisheries’websiteat:http://www.fish.wa.gov.au/sec/about/legislation/


Figure1Mapofcommercialandrecreationalmanagementzones

GreenoughRiverMouth(RecreationalBoundary)

BusseltonJetty(RecreationalBoundary)

MooreRiverMouth(CommercialBoundary)

CapeBouvard(CommercialBoundary)

PreparedbyDepartmentofFisheriesGISNovember2005

ROE’S ABALONE – PERTH METROPOLITAN REGION �7

Figure2Mapshowingnortherncentralandsouthernsubregions

’


�.�.� Customary Fishing

TheMinisterforFisheriesusedtheterm“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)initssubmissiononwesternrocklobsterallocations(NNTT,2005)drewattentiontothedistinctiontheDepartmentofFisheriesmakesbetweencustomaryfishingbyAboriginalpeopleandrecreationalfishingbyAboriginalpeople.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.”

TheNNTTsuggestedthatIndigenousacceptanceofwhatcanbetakentobeanarrowdefinitionofwhatcustomaryfishingrepresentswascontingentonotherstrategiesbeinginplacetoassistIndigenouspeopletotakeadvantageofopportunitiesinthemarinesector.TheNNTTalsoadvisedtheIFAACthattheappropriatenessofsuchadefinitionwaspartofongoingdiscussionsandnegotiationsatanationalandstatelevel.

TheIFAACacceptstheviewthatadistinctioncanbedrawnbetweencustomaryfishingandrecreationalfishingbyIndigenouspeople,andthatnotallIndigenousrecreationalfishersarefishingforcustomarypurposes.

Note 6:

RecreationalfishingbyIndigenouspeople-asdistinctfromcustomaryfishingbyIndigenouspeople-isconsideredtobepartoftherecreationalallocation.

�.�.� Recreational Fishing

TherecreationalsectorismanagedbyregulationundertheFish Resources Management Act 1994andtheFish Resources Management Regulations 1995.

Recreationalfishingforabalonerequireseitheraabalonerecreationallicenceoranumbrellarecreationallicencepermittingaccesstoalllicensedrecreationalfishingactivity.5Licenceswerefirstintroducedin1992.Thereisnolimittothenumberofrecreationallicencesthatcanbeissued.

Licencesareissuedfora12-monthperiodfromthedateofissue.Licencefeesarecurrently$36foraspecificabalonelicence,and$72foranumbrellarecreationallicence.During2004about8,000abalonespecificlicences,and13,000umbrellarecreationallicenceswereissued.

Anyone-otherthantheholderofacommercialfishinglicence-mayapplyforarecreationallicence.TheactualnumberoflicenseesthatfishforRoe’sabaloneinthePerthmetropolitanregionislessthanthenumberoflicencesissued.

Since1995,therecreationalseasonhasstartedonthefirstSundayinNovemberandconsistedofsixSundaymorningsbetweenthehoursof7:00amto8:30am.Adailybaglimitof20perlicenceholder,andminimumsizelimitof60mmapply.

Themajorityofrecreationalfisherstakeabalonebywadingonthereefplatform,withasmallproportionsnorkellingadjacenttothereefplatform.Recreationalfishersuseascrewdriverorsimilarinstrumenttoleverabalonefromthereef.

Recreationalfishersarenotpermittedtousecompressedairtotakeabalonefromsubtidalareas.FurtherdetailsoftherecreationalsectorareavailablefromFMP204.

5Aboriginalpersonsarenotrequiredtoholdarecreationalfishinglicenceunders.6oftheFRMA


�.�.� Commercial Fishing and Aquaculture

TheIFAACconsidersthecommercialabalonesectortocompriseboththecommercialwildcapturesectorandtheaquaculturesector.

CommercialfishingforabaloneismanagedundertheAbaloneFisheryManagementPlan1992(inconjunctionwiththeFishResourcesManagementAct1994andassociatedregulations).Thereare13commerciallicenseespermittedtotakeRoe’sabaloneinthePerthmetropolitanregion.Theselicenseesholdatotalof7,200units(oneunitcurrentlyequals5kgwholeweight).

ThecommercialabalonesectorhasbeenmanagedunderaTotalAllowableCommercialCatch(TACC)inthePerthmetropolitanregion(Area7underthemanagementplan)since1997.TheTACCforthePerthmetropolitanregionhasbeen36tonneseachseasonsincethen,apartfrom1998whenitwasreducedto24tonnestoprovideforachangefromaseasonperiodofOctober-to-SeptembertoApril-to-March.

Commercialfisherscomplywithanindustry-initiatedmanagementarrangementtotakeRoe’sabaloneofatleast70mminlength(10mmabovethelegalminimumsize).Thisarrangementsuitsthecommercialindustrybecauselarger-sizedabaloneattractahigherprice(perkg).

CommercialdiversarenotpermittedtofishonweekendsandonpublicholidaysinthePerthmetropolitanregionallseason.Inaddition,commercialdiversmustceasefishingtwoweekspriortotheopeningoftherecreationalseason(i.e.thefirstSundayinNovember)andnotfishatallduringtherecreationalseason.

Commercialfisherylicencesarerenewedannually,afterlicenseeshavepaidtheannualaccessfee.ThetotalamountcollectedfromcommerciallicenseestoaccessRoe’sabaloneinthePerthmetropolitanregionforthe2005/06seasonwas$92,600.

ThePerthmetropolitanregionisanimportantareatothecommercialRoe’slicensees,asaboutathirdoftheannualcommercialcatchforthestateistakenthere.Theindustryreport,intheirsubmission,thatthevalueofthePerthmetropolitancatchequatestoabout40percentofthetotalstate-widevalueoftheRoe’sabalonecatch,becauseofthevalueofthelargesizeabalonethataretakeninthePerthmetropolitanarea.

TheDepartmentofFisheriesinitssubmissionhasestimatedtheaveragegrossvalueofproductionfromthePerthmetropolitanregionovertheperiod1999to2003as$1.39million.FurtherdetailsofthecommercialfishingsectorareprovidedinFMP204.

TheaquaculturesectorhasarequirementtoaccessasmallnumberofRoe’sabalonefromthewildtocarryoutresearchandsupplybroodstockforfarmproduction.ThisaccessiscurrentlyprovidedbyaMinisterialexemptionundersection7oftheFRMA.

ThenumberofRoe’sabalonepermittedtobetakenbythethreebodiesthatcurrentlyholdMinisterialexemptionsisrelativelylow(550animals).Further,itappearsfromTable11inFMP204thatonlyoneoftheseexemptionholdersislocatedwithinthePerthmetropolitanregion.


TheprincipalsourceofdatathattheIFAAChasusedinconsideringitsadviceonallocationsisFMP204.

�.� CustomaryTheDepartmentofFisherieshasnospecificinformationonthenumbersofIndigenouspeoplethatparticipateincustomaryfishingforabalone(seesection3.2.1foradefinitionofcustomaryfishing)ortheamountthattheycollectred.

Thereisevidenceinaresearchreport,providedtotheIFAAC,thatIndigenouspeopleonthewestandsouthwestcoastshavehistoricallytakenmolluscs(Wright,2005).TheauthorofthatreportreferredtoagreatdealofarcheologicalevidenceofcoastalexploitationbyAboriginalpeople.Inparticular,researchconductedbetweenKalbarriandCapeAridshowedthatsouthwesternAboriginalpeopleatemarinemolluscsincludingabalone(Dortch,KendrickandMorse1984).

Morerecently,evidencehasbeengiveninaNativeTitleTribunalhearingthatabalonewerecollectedfromreeftopsandrocksonthesouthcoast(seeFMP204,page56)

WithrespecttotheamountofabaloneIndigenouspeopleate,theDepartmentinaletter(appendixH)totheIFAACmakesthefollowingpoints:

• TherearenoknowncoastalshellmiddenssitesbetweenMooreRiverandCapeNaturaliste.

• Furtherresearchwouldberequiredbeforeanyinformeddecisionaboutthecustomaryleveloftakecouldbemade.

• InthePerthmetropolitanregion,becausethestockislocatedonthelocalreefplatformsattachedtotheshoreline,historicallyitwouldhavebeenparticularlyaccessibletoIndigenouspeople.

TheIFAACacceptsthattodatethereisnoinformationonthecustomarycatchofabalonebyIndigenouspeopleinthePerthmetropolitanregion,butitisinterestedinknowingifthereareanyothersourcesofthisinformationthatmayhavebeenoverlookedinpreparingthisreport.TheIFAAC

thereforeencouragespersonswhohaveinformationonthecustomarytaketoprovideittothecommitteeduringthesubmissionphase.

Note 7:

TheIFAACwelcomesfurtherinformationonthecustomarytakeofabalonebyIndigenouspeoplethroughsubmissionsonthisreport.Wherethereislikelytobeasignificantcustomarytake,thedemandsofIFM(IFMGovernmentPolicy,paragraph18,AppendixA)willnecessarilyrequiremoreresearchandmonitoringofthecustomarytakebyIndigenouspeople.

�.� Recreational

TherecreationalcatchofabaloneisdescribedinFMPNo204andtheDepartment’ssubmissiontotheIFAAC(www.fish.wa.gov.au).

TheDepartmentprovidesacomparisonofthethreesurveymethodsusedtocollectinformationontherecreationalcatchinthePerthmetropolitanregioninitssubmission,i.e.:

1. fieldsurvey(since1997);

2. phonerecallsurvey(since1999);and

3. phonediarysurvey(2004-05).

Thefieldsurveyhasbeenconductedthelongest(since1997)andisbasedonsamplingcatchesofrecreationalfisherstodetermineaverageweights,catchratesanddirectcountsofrecreationalfishers.

Recreationaldailycatchratesarecalculatedfrominterviewswithfishers.Estimatesofthetotalfishingeffortarethenusedtoprovideanestimateofthetotalcatchinnumbers.Estimatesofmeanweightsareusedtoconvertthenumbersofabalonetakenbyrecreationalfishersto‘recreationalcatch’(inwholeweight)forcomparisonpurposeswiththecommercialsector.

Thephonerecallsurveyhasbeenconductedsince1999andisbasedoninterviewing400people,randomlyselectedbylicencetypeandlocation.TheinterviewsareconductedaroundFebruaryeachyear.Catchestimatesareprovidedatthebioregionalscaleforallspecies.

4 CATCH INFORMATION


Thephonediarysurvey,whichhasjustrecentlybeenintroduced,isbasedonsendingadiaryto500licenceholders,selectedbylicencetypeandlocation,andcontactingeachdiaryholderonceamonthbyphoneforthedurationoftheabaloneseason.

ThecatchestimatesfromeachsurveymethodareprovidedinTable1below.

TheDepartmentofFisheriesinitssubmissionhasusedthefieldsurveydatatocomparethecatchesbetweenthesectors,whereasinFMP204thesewerebasedonthecomparisonoftheaverageofthefieldandphonesurveyresults(whentheywerebothavailable).

TheDepartmentofFisherieshasjustifiedthechangetousingthefieldsurveyresultsonthefactthattheresultsfromthephonediarysurveyin2004confirmthefieldsurveyismoreaccuratethanthephonerecallsurvey.Thetelephonediarysurveyisconsideredtobemoreaccuratethanthephonerecallsurveyduetotherecallbiasassociatedwithphonerecallsurveys.ThephonediarysurveyresultsonlybecameavailableafterFMP204waspublished.

Theimportantimplicationofusingthefieldsurveyresultsisthattheestimateoftherecreationalcatchislowerthantheestimateproducedfromtheaverageofbothsurveys,i.e.thephonesurveyestimateshavealwaysbeenhigherthanthefieldsurveyestimates.

TheIFAACisconcernedthattheDepartmentofFisherieshas(initssubmission)usedadifferentmethodtoestimatetherecreationalsector’scatch

inthePerthmetropolitanregionintheshortperiodsincethepublicationofFMP204.

TheIFAACtooktheviewthatitshouldusetheaverageofthetwoestimatesfromthefieldandtelephonesurveysasthebestestimateoftherecreationalabalonecatchinthePerthmetropolitanregionforthepurposesofestimatingcatchproportions.ThereasonsforadoptingthisapproachwerefirstlythattheaveragesofthetwosurveyshavebeenusedinFMP204(theprincipalsourceofinformation)andtheStateoftheFisheriesuptothetimeoftheDepartment’ssubmission;andsecondlythatthechangefromtheaverageisbasedonthesurveyresultsfromonetelephonediarysurveyonly.

Usingtheaverageofthefieldandphonerecallsurveys(Table1)itisevidentthattherecreationalcatchhasvariedbetween29.5tonnesand46.0tonnessince1997,withanaverageof37.2tonnesperyear.

MostoftherecreationalcatchistakeninthenorthandcentralsubregionsofthePerthmetropolitanregion(Figure2).

�.� CommercialThecommercialcatchinformationisprovidedinTable1.TheTACChasbeen36tonneseachseason,apartfrom1998whenitwasreducedto24tonnestoaccommodateachangeinseasondates.

Thesourcesofdataforthecommercialabalonefisheryarestatutorymonthlyreturnsanddailycatch

Table1Catchestimatesforthecommercialandrecreationalsectors,intonneswholeweight,forRoe’sabaloneinthePerthmetropolitanregionfrom1997to2004.

Season

Commercial

Catch(t)2

RecreationalEstimatedCatch(t)

FieldSurvey3 PhoneRecallSurvey3

AverageFieldandPhonerecall

PhoneDiarySurvey

1997 36.4 29.5 – 29.5 –

1998 24.1 33.8 – 33.8 –

1999 36.1 35.3 37.7 36.5 –

2000 36.5 30.2 33.7 32.0 –

2001 35.4 44.1 47.8 46.0 –

2002 36.0 36.0 39.3 37.7 –

2003 36.0 42.6 47.2 44.9 –

20043 35.9 31.7 44.4 38.1 28.0

1Forthecommercialsectorthelicensingperiodstartsonthe1Aprilandfinishesonthe31March.FortherecreationalsectorthefishingseasonisoversixconsecutiveSundaysstartingonthefirstSundayinNovembereachyear.2Source:Table7FMP2043Source:Table9FMP2044Source:Informationfor2004hasbeensourcedfromtheDepartmentalsubmission


anddisposalrecords(CDRs).CommercialabalonediversrecordontheirCDRsestimatesofcatch(inkg),effort(inhourandminutesspentdiving)andthelocationfishedwithina10x10nauticalmilegridsystem.

TheCDRsareregardedasthemostaccuraterecordofthecatch,butstatutoryreturnsprovideausefulhistoricalrecordofthecatchandeffortastheyhavebeencollectedsincethe1970s.

MostofthecommercialcatchistakeninthenorthandsouthernsubregionsofthePerthmetropolitanregion(Figure2).

�.� Recreational and Commercial Catch Shares

Thecatchproportionseachyearsince1997aregiveninTable2below.TheyhavebeenestimatedusingthecommercialandrecreationaldatafromTable1.

Table2CatchproportionsforRoe’sabaloneinthePerthmetropolitanregionovertheperiod1997-2004

Year

Proportion%

Commercial Recreational1

1997 55 45

1998 42 59

1999 50 50

2000 53 47

2001 44 57

2002 49 51

2003 45 55

2004 49 521UsingtheaverageofthefieldandtelephonesurveysfromTable1

Catchsharessince1997(excluding1998)havevariedbetween43percentand55percentforthecommercialsectorand,conversely,between45percentand57percentfortherecreationalsector.Rangesofcatchproportionsinsubregionssince1999usingtheinformationprovidedinFMP204areshowninTable3togiveanindicationofhowthecatchissharedbetweenthetwosectorsineachofthesubregions.

Table3CatchproportionsbysubregionandregionscombinedinthePerthmetropolitanregionovertheperiod1999-2004

Subregion

Sector%Average&range

Commercial Recreational1

North 45(51-36) 55(64–49)

Central 30(40–33) 70(77–60)

South 89(96–79) 11(21–4)

Combined 48(55-42) 52(58-45)1UsingtheaverageofthefieldandtelephonesurveysfromTable1

Essentially,asthecommercialcatchhasbeenfixedat36tonnesperseasonsince1997thecatchproportionshavevariedaccordingtotheamounttakenbytherecreationalsector.


Asaprecursortoprovidingitsadviceonactualallocations,theIFAACconsideredthatitneededtodiscussthefollowingissues:

1. alignmentofboundaries;

2. fishingonthereefplatformbetweenHillarysBoatHarbourandMooreRiver;

3. incidentalmortality;and

4. proportionalallocationsunderasinglesustainableharvestlevel(SHL).

Eachoftheseissuesisdiscussedbelow.

�.� Alignment of BoundariesCurrently,Perthmetropolitanboundariesarenotalignedbetweenthecommercialandrecreationalsectorsonthewestcoast(seeFigure1).

TherecreationalboundariesarefromGreenoughRiverMouthtoBusseltonJettyandthecommercialboundaries(Area7)arefromMooreRivertoCapeBouvard.

TheDepartmentofFisherieshasproposedthattheboundariesarechangedsothattherecreationalboundariesforthePerthmetropolitanregionareequivalenttotheboundariesfortheexistingcommercialfisheryinthePerthmetropolitanregion(Area7).ThispositionhasalsobeensupportedbytheRecreationalFishingAdvisoryCommittee.

Inthelong-term,integrationoffisherymanagementwillresultinadjustmentstofisherymanagementstructuresandpracticestofacilitatetheintegrationofcustomary,commercialandrecreationalfisheries.AscreatingarecreationalzonebetweenMooreRiverandCapeBouvardisthetypeofmanagementchangethatwouldfacilitatetheintegrationofmanagementofthesectors,theproposalissupportedbytheIFAAC.

Recommendation 3: A recreational zone is created between Moore River and Cape Bouvard so that the commercial and recreational sectors have common boundaries over the Perth metropolitan region.

TheDepartmentofFisherieshasalsoproposedthatanewmid-westcoastzoneiscreatedfortherecreationalfishery,makingatotaloffour

recreationalzones(seeFigure3).TheDepartmenthasarguedthecaseforcreatinganewmid-westcoastzonebecauseitbelievesthereisaneedtomanagethemoreintensiverecreationalfishinginthatarea.

AsthecreationofthiszoneisaimedatimprovingmanagementarrangementsandisnotamatterdirectlyrelatedtothedeterminationofallocationsinthePerthmetropolitanregion,theIFAACbelievesthatitisnotappropriatetomakearecommendationonthematter.Instead,thecreationofanewmid-westzoneshouldbediscusseddirectlybetweentheDepartmentofFisheriesandtherecreationalsector,with‘input’fromthecommercialsector.

Note 8:

Thecreationofanewmid-westrecreationalzonenorthofthenewPerthmetropolitanregionshouldbediscusseddirectlybetweentheDepartmentofFisheriesandtherecreationalsector,with‘input’fromthecommercialsector.

5 ALLOCATION ISSUES


Figure3:MapshowingrecreationalzonesproposedbytheDepartmentofFisheries

GreenoughRiverMouth(RecreationalBoundary)

BusseltonJetty(RecreationalBoundary)

MooreRiverMouth(CommercialBoundary)

CapeBouvard(CommercialBoundary)

PreparedbyDepartmentofFisheriesGISNovember2005

NORTHERN ZONE Greenough River to Northern Territory Border

MID WEST COAST ZONE Greenough River to Moore River

METROPOLITAN ZONE Moore River Mouth to Cape Bouvard. Commercial and Recreational.


�.� Hillarys Boat Harbour to Moore River reef top Fishing

ThecurrentbanonreeftopfishingforcommercialfishersextendsfromCapeBouvardtoHillarysBoatHarbour.

TheRFAChasproposedthatthebanbeextendedtoMooreRiver.RecfishwestbelievesthatnegotiationsshouldcontinuewithcommercialoperatorsconcerningimportantreefsbetweenTriggIslandandHillarysMarina,andreeftopharvestingbycommercialoperatorsbetweenHillarysBoatHarbourandGreenoughRivermouth.

Thecommercialsector,inaverbalsubmissiontotheIFAAC,rejectedfurtherrestrictionsonitsfishingactivityonreeftops,buthasprovidedcommenttothecommitteethatithasnotbeenactivelyfishingonthereeftopfromHillarysBoatHarbourtoBurnsBeach.

FromthesubmissionsmadetotheIFAAC,itwouldappearthatthecommercialsector(oratleastsomeparticipants)believedthattheyarealreadyprohibitedfromfishingonthereeftopfromHillarysBoatHarbourtoBurnsBeach(seeFigure2).

TheareabetweenHillarysBoatHarbourandBurnsBeachisapopularrecreationalfishingareaandextendingthereeftopbanoncommercialfishinghasthepotentialtoreducefutureinteractionandconflictinthearea.

AsextendingtheprohibitiononcommercialdivingonthereefplatformtoBurnsBeachiseffectivelymaintainingthestatusquoandwillreducethepotentialforconflictinthefuture,theIFAACbelievestheproposalhasmerit,inthecontextoftheimplementationofIFMforthisfishery.

AsthepopulationofPerthspreadsfurthernorthalongthecoast,theremaybeaneedtoconsiderfurtherchangestoarrangementstoreducepotentialconflictbetweencommercialandrecreationalfishersundertheongoingIFMframework,althoughasnotedaboveinfirstinstancethesectorsshouldtakealeadinnegotiatingontheseissues.

Forexample,extendingtheprohibitiononcommercialaccesstothereeftopnorthofBurnsBeachcouldbenegotiatedbetweenthetwosectorswithinanIFMframework.IFMprovidesasecurebasisforinter-sectoralnegotiations.

Asignificantdefectofthecurrent‘non-integrated’fisheriesmanagementsystemisthatshouldthecommercialorrecreationalsectorshowflexibilityinnegotiationsthatmightleadtoanincreaseincatchandeffortbytheothersector,theresultcouldleadtolossesandareducedallocationbythesectormakingaconcession.Unfortunatelyandunintentionally,theincentivesareeffectivelyinfavourofdisputationandconflict.

UnderIFM,accesstotheresourcebecomesmoreassuredandsectorsharesarespecified,openingupmorepossibilitiesfornegotiationandagreement.However,IFMwillnotofitselfguaranteeanoutcomeanditmaytaketimeforthenecessaryculturalshiftsinthenegotiatingpracticesofthevarioussectorstooccur.

Recommendation 4: The ban on commercial fishers fishing on the reef top between Cape Bouvard and Hillarys Boat Harbour should be extended further north. This recommendation is made in the light of the integrated package proposed in this report. The IFAAC would welcome comments on this issue.

�.� Incidental MortalityTherearethreerelevantGovernmentpolicyprinciples,whichrelatetoincidentalmortality.Thesearelistedbelow:

5iv)Aharvestlevel,thatincorporatestotalmortality,shouldbesetforeachfisheryandtheallocationsdesignatedtoeachgroupshouldbemadeexplicit.

5v) Theallocationstousergroupsshouldaccountfortotalmortalityonfishresourcesresultingfromactivitiesofeachgroup,includingbycatchandmortalityofreleasedfish.

5x) Managementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation.

Theeffectiveimplementationoftheseprinciplesraisessubstantialissues,requiringahighqualityofknowledgeoffishstocksandtheimpactoffishingactivity.

TheIFAACsoughtadvicefromtheDepartmentofFisheriesontherelationshipofthecatchofeachsectortotheSHLandhowincidentalmortalityisincorporatedintotheSHL.TheDepartment’sadviceisprovidedinAppendixI.


�.�.� A harvest level incorporating total mortality

Intermsofthefirstpartofpolicyprinciple5(iv),settingaharvestlevelthatincorporatestotalmortalityistheroleoftheExecutiveDirectoroftheDepartmentofFisheries.ItisclearfromFMP204thattheExecutiveDirectorhasnotcurrentlyprovidedasustainableharvestlevel(SHL)thatarithmeticallyincorporatestotalmortality,astheSHLisgivenasthetotalquantityofRoe’sabalonethatmaybetaken(landed)bythecommercialandrecreationalsectors.

Inotherwords,theSHLdoesnotincludeallsourcesofmortalitysuchasnaturalmortality,discardsandillegaltake.TheDepartmentofFisheriesexplainsinAppendixIhowitdealswithincidentalmortality-asummaryofwhichisprovidedbelow.

Althoughthereisnoestimateoftotalmortality,theimpactoftotalmortalityonthestockisreflectedinperformanceindicatorsusedtomonitorthestockstatusandassesstheSHL.

ThemonitoringofthestockandSHLisreliantonthetrendsinfishery-dependent(commercialandrecreationalcatch,effortandcatchrates)andfishery-independent(researchsurveysofkeylocationsofcommercialandrecreationalinterest)performanceindicators.Iftherewereasubstantialincreaseinabaloneabundanceduetoadecreaseintotalmortality(causedby,forexample,feweranimalsdiscarded)thechangeinabundancewouldbeidentifiedasachangeintheperformanceindicators.

TheDepartmentofFisheriesbelievesthatinthiswaytotalmortalityistakenintoaccountinsettingtheSHL,withouthavingtoestimateeachofthecomponents.

�.�.� Allocations that account for total mortality

AlthoughinformationisnotavailablefortheIFAACtorecommendallocationsthatincludeincidentalmortality,thefollowingdiscussionisprovidedsothatthevariousstakeholderviewsonthisissuearereported.

ThesubmissionsmadetoIFAACindicatethatstakeholdersbelieveincidentalmortalityislikelytobehigherfortherecreationalsectorthanthecommercialsectorforarangeofreasonsincludingexpertise,environmentalconditionsandshortfishingtimesfortherecreationalsector.Stakeholdershaveintheirsubmissionsarguedthatincidentalmortalityshouldbetakenintoaccountinaccordancewiththeprinciples,

buttheyvaryastohowthisshouldbedone.

TheAbaloneIndustryAssociationofWesternAustralia(AIAWA)believesthatthereshouldnotbeanallocationforincidentalmortalitytotherecreationalsectorinadditiontoitslegallyfishedshare.

Recfishwest’spositionisthatthetotalcatchincludingincidentalmortality“must”formthebasisoftherecreationalallocation.Inotherwords,itshouldbeinadditiontoitslegallyfishedshare.Recfishwestholdstheviewthatincidentalmortalityformspartofthe‘take’asinterpretedundertheFishResourcesManagementAct1994,andthereforeshouldbeusedincalculatingtherecreationalallocation.

Recfishwestbelievesthatanominalfigureof33percentshouldbeaddedtotherecreationalcatchfiguresforallocationpurposestoaccountforincidentalmortality,therebyeffectivelyincreasingtheaveragehistoricalrecreationalcatch.

Incontrast,theDepartmentofFisherieshasadoptedtheviewthatallocationsshouldbeonlybasedonretainedcatch.TheDepartmentexplainsthatincidentalmortalityoccursinbothfisheries,albeititismorecommonintherecreationalfishery;ishighlyvariablefromyear-to-year;andisdependentonweatherandswellconditions.

NotwithstandingthedesirabilityofincludingincidentalmortalityintheSHLinaccordancewiththepolicyprinciples,theIFAACcannotincludeincidentalmortalityinanallocationtoasectorbecausethereisnovalidatedestimateofit.

Thepracticalimplicationofthis,aspointedoutbytheDepartmentofFisheries,isthatanydecreaseinincidentalmortality,orforthatmatteranyotherchangeinfishingpracticesthatleadstoanincreaseoftheSHL,wouldbenefit6allsectors.

�.�.� Access arrangements

Managementarrangementsarehavinganinfluenceoverthenumberofabalonediscardsbytherecreationalfishingsector.TheIFAACbelievesthereisthepotentialtoreducediscardsbytherecreationalsectorunderalessrestrictivemanagementregime.

Ithasbeennotedabovethattheincidentalmortalityofabaloneduringfishingcarriedoutbytherecreationalsectorcanbeaffectedbytheshortfishingseasonandweatherconditions,particularly

6Theextenttowhichsectorswouldbenefitfromadecreaseinincidentalmortalityisunknown.


swell.Thisisbecausethenine-hourrecreationalseasoncanmeanthatfishersgofishingforabaloneunderpoorweatherconditions.

Thissituationcausesahighernumberofdiscardsthanusualbecausethepoorweather(i.e.ahigherswellthanusual)meansitisverydifficultforfisherstogaugethesizeofabalonewhiletheyareattachedtothereef.Amanagementsystemthatprovidedmorechoiceregardingtheconditionsinwhichrecreationalfisherscouldfish,andtheabilitytomeasureabalonepriortocollection,wouldleadtolessdiscards.

TheAIAWAhasproposedthatdiscardscouldbereducediftheminimumsizelimitwasremovedandfisherscouldtakethefirst20animalstheypickedup,regardlessofthesizeoftheanimals.

TheIFAACbelievesthatthereareopportunitiestoreduceincidentalmortalitybymakingchangestothemanagementarrangementsandtheDepartmentofFisheriesshould,asamatterofpriority,takeactioninconsultationwithstakeholdersaimedatminimisingincidentalmortalityonthereefplatform.

Recommendation 5: The Department of Fisheries in consultation with the recreational sector should introduce, as a matter of priority, management arrangements that are aimed at reducing discards of abalone on the reef platform in the Perth metropolitan region.

�.� Proportional Allocations for the Perth Metropolitan Region

AccordingtotheDepartmentofFisheries,muchoftheconflictbetweenusergroupsforRoe’sabaloneinthePerthmetropolitanregion:

“…stems not from direct competition for access to the resource but rather concern on the part of the industry about the large annual fluctuations in the recreational catch and incidental mortality.”

Afterstakeholderpresentations,itappearedtotheIFAACthattheprincipalconcernsforthecommercialsectorwere:

• theriskstomaintainingastablecatchinthelightoffluctuationsinrecreationalcatchandmortality;

• thesize/agestructureofthatsectionofthe

fisheryaccessedbythecommercialsectorissuchthatitenablesoptimalcommercialharvestingstrategies;and

• concernaboutprotectingrecruitmenttothesubtidalfishery.

TheIFAACisoftheviewthatmuchofthisconcerncanbereduced.

Theapproachtoaddressingthefluctuatingrecreationalcatchisdiscussedinthissection,whileincidentalmortalitywasdiscussedintheprevioussection.

TheapproachtheIFAACproposestoaddressthelargeannualfluctuationsintherecreationalcatchisdiscussedinthecontextofGuidingprinciple5(ix):

“Allocationstousergroupsshouldgenerallybemadeonaproportionalbasistoaccountfornaturalvariationsinfishpopulations.Thisgeneralprincipleshouldnot,however,precludealternativearrangementsinafisherywherepriorityaccessforaparticularusergroup(s)maybedetermined.Itshouldremainopentogovernmentpolicytodeterminethepriorityuseoffishresourceswherethereisaclearcasetodoso.”

�.�.� Management and stock assessment

ThedifferencesbetweenthecommercialandrecreationalfisheriesforRoe’sabaloneinthePerthmetropolitanregionbringintoquestiontheappropriatenessofmanagingthecatchofeachsectorunderaproportionalallocationmodel.

TherecreationalandcommercialsectorstakemostoftheircatchfromdifferentageclassesoftheRoe’spopulation.Thecommercialsectortakeslarger,andthereforeolder,abalonefromair-assisteddivinginthesub-tidalhabitat,whereastherecreationalsectorcurrentlymainlytakesyoungerandsmallerabalonefromthereefplatform.Asmallproportionofrecreationalfishers‘freedive’7andtakegenerallylargerabalonethanwhatistakenfromthereeftop.

Themanagementofthetwosectorsisverydifferent.Thereistoalargeextentspatialseparationbetweenthesectors,withtherecreationalsectorhavingexclusiveaccesstothereeftopsuppliesofabalonefromCapeBouvardtoHillarysBoatHarbour.Thestockinthesub-tidalhabitatisshared,butinpracticeonlyasmallproportionoftherecreationalsectorfishthere.

7TheuseofcompressedairbyrecreationaldiverstotakeRoe’sabaloneinthePerthmetropolitanregionisprohibited.


ThecommercialsectorismanagedtoafixedcatchunderaTACC.Incontrast,therecreationalsector’scatchisveryvariable,asitismanagedmainlybycontrolsonbaglimitsandfishingeffort.

RecreationalfishingisrestrictedtosixSundayseachyear,betweenthehoursof7:00amand8:30amonly.Astheweatherconditionscanhaveadirectimpactonthefishingactivityofrecreationalfishers,thecatchvariessignificantlyfromyear-to-year,accordingtotheprevailingweatherconditions.

Theperformanceindicatorsusedforstockassessmentalsovaryforeachofthesectors.Catchrateshavebeenthemainindicatorusedtoassessthestatusofstocksforthecommercialsector,althoughthereisfishery-independentsamplingofthepopulationsizestructureandabundanceinthesub-tidalhabitat.

TheDepartmentofFisheriesuseschangesincommercialcatchratesasabasisformakingadjustmentstotheTACCforthecommercialabalonefishery.Inparticular,ifthecommercialcatchratesreachacertainthreshold(44kg/hr),considerationisgiventoincreasingtheTACC.

Fortherecreationalfishery,theabundanceofanimalsonthereefplatformismonitoredaftertheendofeachseasontodeterminetheeffectsoffishingonthestockandestimaterecruitment,basedonfishery-independentsamplingofthepopulationsizestructureonthereefplatform.

Catch,effortandcatchratesoftherecreationalsectorareestimatedfromfieldandphonesurveys.Thisinformationisusedtoassesstheneedtomakechangestothemanagementarrangementsfortherecreationalsector.

Therehasbeenlittlevariationtotheprincipalmanagementarrangementsforeachofthesectorssince1997,i.e.thecommercialTACChasremainedat36tonneswhilerecreationalfishingefforthasbeenlimitedtosixSundays.

Essentially,thetwosectorshavebeenmanagedseparatelyasdemonstratedabove,althoughthereisrecognitiontheysharethesamestock.

�.�.� Management flexibility

Giventhediscussionabove,theIFAACisconcernedthattheremaybealossofmanagementflexibilityunderproportionalallocations.Theabilitytoalterthemanagementofeachsector’sfishingactivities


differentlyisanimportantadvantagewherethereisavariablepopulationdistribution,spatiallyseparatefisheriesanddifferentfishingpractices.

Managementneedssufficientflexibilitytoalterthecatchforonesector,separatelytotheothersector.Twoexamplesareprovidedbelowtoillustratethisneed,wherethismaybeadesirableoutcomeforRoe’sabaloneinthePerthmetropolitanregion.

Example1:CommercialcatchratesindicatedthatthecommercialTACCcouldbeincreasedwhileindicatorsforabaloneabundanceonthereefplatformindicatethatrecreationalfishingeffortshouldnotbeincreased.

Example2:Productivityofapartofthereefplatformisreducedbysomeunusualenvironmentalimpactoroverfishing.Thissituationmaynotaffectthesectorthatdoesnotfishinthatarea,butmayrequiremanagementactiontoreducefishingeffortonthesectorthatfishesthereefplatforminthatparticularlocation.

Inthesetwoexamples,asinglesustainableharvestlevel(SHL)withproportionalallocationsthatequallyaffectsbothsectorshasthepotentialtobeunfair.

�.�.� Impact of catch on the stock

TheIFAAChassomeconcernsaboutallocatingcatchproportionstothesectorsunderasingleSHLwhenthereisuncertaintyabouttheimpactsofreallocatingcatchfromonesectortotheother.

InordertoimproveitsunderstandingofhowthecatchofonesectorimpactsonthecatchoftheothersectorandhencetheSHL,theIFAACsoughtadditionalinformationfromtheDepartmentofFisheries.TheDepartment’sresponsetotherequestforadditionalinformationonthismatterisprovidedinAppendixI.

Essentially,theDepartmentofFisherieswasnotabletoprovideabasisforcomparingthecatchesofthetwosectorsontheoverallstock,althoughitprovidedanexplanationofhowitassessedtheSHLintermsofmonitoringtrendsinstockabundance,soastomeetsustainabilityobjectivesforthisfishery.

�.�.� Optimising socio economic benefits

Asoutlinedinsection3.3.2,fromaneconomicperspective,nowmaynotbetheappropriatetimetoconsiderinter-sectoralallocationsforRoe’sabaloneinthePerthmetropolitanregion.

McLeodandNicholls(2004)intheirstudyonoptimisingthebenefitsfromtheuseoftheresourceconcludedthattheappropriatetimetogivefurtherconsiderationtointer-sectorallocationwouldbeaftermoreflexiblearrangementsfortherecreationalfishershavebeenestablished,andoperatedforatimelongenoughtoallownetbenefitstobeoptimised.

TheAIAWAsharesasimilarviewtotheauthors,thatis:

“…IFM should, prior to tackling inter-sector allocation, consider the allocation mechanisms within the recreational sector itself.”

Delayingtheconsiderationofinter-sectoralallocationsshouldnotdisadvantagetherecreationalsectorbecausethereareopportunitiestoincreasethebenefitstorecreationalfisherswithintheexistingcatchconstraints.

�.�.� Summary of issues

AlthoughtheIFAACbelievesitispreferabletoimplementproportionalallocationsunderasingleSHL,theIFAAChassomeconcernsaboutimplementingtheminthecaseofRoe’sabaloneinthePerthmetropolitanregionatthistimebecause:

· thereisalreadyahighdegreeofspatialseparationbetweenthesectors;

· thereisinsufficientunderstandingofthecomparabilityofthecatchesbetweentherecreationalandcommercialsectors;

· thereisthepotentialtounfairlydisadvantageasectorunderaproportionalallocationsystem;and

· fromaneconomicperspectivetheappropriatetimetoconsiderhowbesttooptimisethesocio-economicbenefitsfromtheuseoftheresourceisaftermoreflexiblemanagementarrangementsforrecreationalfishershavebeenestablishedandoperatedforalongenoughtimetoallownetbenefitstobeoptimised.

�.�.6 Discussion

TheIFAAC,afterconsideringtheissuesoutlinedabove,formedtheviewthataproportionalallocationsystemshouldnotbeintroduceduntilthereisanincreasedunderstandingofthecomparabilityofrecreationalandcommercialcatchesandexperience


isgainedwithmanagingtherecreationalsectorundermoreflexiblemanagementarrangementsincludingtheproposalbelow.

WhilsttheIFAACisnotrecommendingthatproportionalallocationsbeimplementedatthistime,thecommitteebelievesthereshouldbegreatercertaintyinregardtoeachsector’saccesstotheresource,anditshouldaddresstheissueofthefluctuatingrecreationalcatch.Toaddresstheseissues,theIFAACisrecommendingtheintroductionofa‘totalallowablerecreationalcatch’.

TheIFAACbelievesthetotalallowablerecreationalcatchshouldbebasedontheSHLprovidedbytheDepartmentofFisheriesinFMP204.AstheSHLhasbeenbasedon1999-2003data,theIFAACexpectsthatthestartingpointforthetotalallowablerecreationalcatchshouldbe41tonnes-i.e.thecurrentSHLof77tonneslessthecommercialTACCof36tonnes.

Theadvantagesofthisapproacharethatitretainspriorityaccessoftherecreationalsectortothereefplatform;willleadtoareductioninthevariabilityintherecreationalcatch8;andmaintainstheflexibilitytomanagethecatchofeachsectorseparately.

Underthisarrangement,eachsectorwouldbemanagedtoatotalallowablecatch,butthetotalallowablecatchesforeachsectorcouldbevariedseperately,accordingtorelevantbiologicalindicatorsineachlocation.Importantly,thetotalallowablecatcheswouldnotbelinkedproportionally.

TheIFAACbelievesthisapproachisinaccordancewithitsprinciplethatthereshouldbeapracticalandincrementalapproachtakentoimplementationofIFM,andtheGovernmentpolicy5ix(seeabove).

Inordertoprovideguidanceandcertaintytothesectorsaboutallocationsunderaproportionalmodel,theIFAAChasprovidedadiscussioninsection6ofitsviewonthebasisforproportionalallocationswhentheyareconsideredsometimeinthefuture.

Recommendation 6: The introduction of proportional allocations for Roe’s abalone in the Perth metropolitan region should be deferred until:

• there is sufficient understanding of the comparability of recreational and commercial catches, and;

• fishery managers have gained experience with managing the recreational sector to a total allowable recreational catch under the proposed more flexible management arrangements outlined in Recommendation 13.

Recommendation 7: Until proportional allocations are introduced, sectors should be managed to ensure that the catch taken by one sector is not reducing the opportunity for the other sector to take the average catch it took over the period 1999-2003.

Recommendation 8: A total allowable recreational catch should be introduced for the recreational sector for Roe’s abalone in the Perth metropolitan region. The total allowable recreational catch in the Perth metropolitan region should be based on data over the period 1999-2003.

8Providedmanagementrulesarechangedaccordingly


Asdiscussedintheprevioussection,theIFAACisnotrecommendinganimmediateintroductionofmanagementofRoe’sabaloneunderasustainableharvestlevel(SHL),althoughitbelievesitispreferableinthelongtermasfishingpressureincreases.However,forthebenefitofstakeholdersandinordertoprovideguidancetoGovernmentinthefuture,theIFAAChasincludedadiscussionofsectorallocationsunderaSHL.

TheIFMpolicyguidelinesprovidealong-termframeworkforenhancingthesustainabilityoffishstocksandresolvingresource-sharingconflicts.TheIFAAC’stermsofreferenceincludesprovidingadviceonproportionalallocations,aswellasadvisingonstrategiestoreduceconflictarisingfromcompetitionforfishatalocalandregionallevel.

TheapproachtheIFAAChastakenwithrespecttothisfisheryistoplacegreateremphasisonprovidingadviceonstrategiesaimedatresolvingconflictratherthanestablishingproportionalallocationswithinanoverallunifiedsustainableharvestlevel(SHL).

Overtime,theIFAACexpectsthatabetterunderstandingoftheimpactofeachsectorontheresource,andtheinteractionofthesectorsinvolved,willallowforproportionalallocationsforthisresourcetobeintroduced.ThiswillenabletheintroductionofreallocationmechanismswithinanoverallunifiedSHL,sothatthebenefitsthatcanarisefromtransfersofsharesbetweensectorscanberealised.

However,intheabsenceofproportionalallocations,thereremainsanincentiveforeachsectortoseektoincreaseitscatchtothedetrimentofothersectorsandpotentiallycreategreaterriskstothesustainabilityofthefishery.Asaresult,theIFAACbelievesitisappropriatetoexpressaviewastotheproportionalallocationsthatitwouldhaverecommendedhaditsconcerns(referredtoabove)beenabletoberesolved.

TheIFAACbelievesthatitsrecommendationregardingproportionalallocationsforthecommercialandrecreationalsectors(seesection6.2.7below)shouldbeseenasastartingpointforanyfutureproportionalallocation.Inaddition,theIFAACbelievesthatifitisproposedthattheproportionstobeallocatedaresignificantlydifferentthanthoseindicated,thenafull

reviewoftheimplementationofIFMforthisresourceshouldbeinitiated.

ThesubmissionperiodforthisdocumentofferstheopportunityforstakeholderstoprovidefurtheradvicetotheIFAAConthemattersdiscussedabove.

6.� Customary FishingTheIFAAChastakenapragmaticapproachtodeterminingtheallocationforcustomaryfishing.Incomingtoitsrecommendation,itisrequiredtoreconcilethepolicyadvicefromtheMinisterforFisheries(AppendixD)thatapriorityallocationforcustomaryuseshouldbemadewiththefactthatthereisalackofdataavailableontheactualleveloftakeofcustomaryfishingforabalone.

Whilethereisinformationingeneralinrelationtothecustomarytakeofabalone,nospecificinformationisavailabletotheIFAACtosuggestthatthecustomarytakeofabaloneisasignificantproportionofthetotaltakeofabaloneinthePerthmetropolitanregion.

Intheabsenceofalternativeevidence,amethodologywasproposedbytheDepartmentofFisheriestomakeanassessmentofcustomarytake,basedonthepercentageofthePerthmetropolitanpopulationthatisIndigenousandthenattributingtothemthelevelofexploitationthatwouldbeattributedtothegeneralpopulation.Thiswouldleadtoanallocationofapproximately156kg(seeBox2).

TheDepartmentofFisheriesfurtheradvisedtheIFAACthattheamountestimatedusingthismethodmaybeanunderestimateandrecommendedinsteadanallocationofbetween500and1,000kg.

TheIFAACsubsequentlysoughtfurtheradvicefromtheDepartmentofFisheriesonthismatterandthisadditionaladviceisprovidedinAppendixH.TheDepartmentinsupportofitspositiondidnotprovidespecificadviceastothelevelofcustomarytakebutadvisedthat:

“Under-allocating the customary take will require future re-allocations at the direct expense of the other sectors… It also needs to be recognised that any over-allocation can be adjusted as further information becomes available.”

6 SECTOR ALLOCATIONS UNDER A SUSTAINABLE HARVEST LEVEL


TheIFAAChastakentheviewthatitneedstomakeitsrecommendationsonthebasisofspecificinformation,oratleastusingaconsistentmethodology.Accordingly,intheabsenceofspecificevidenceastothelevelofcustomarytake,theIFAACbelievstheallocationshouldbebasedonthemethodologyproposedbytheDepartmentofFisheries.

HowevertheIFAACbelievesthefigureof156kg(ascalculatedinBox2)shouldberoundedupto200kgonthebasisthatanallocationof156kgmightgiveamisleadingimpressionoftheaccuracyofthemethodsused.

Thisinitialpriorityallocationcanbevalidatedovertimeandreadjustedifnecessary,andgiveseffecttothegovernmentpolicyonthisissue(seesection3.2.1).

TheIFAACacknowledgesthatinarrivingatthisestimate,theapproachtakenisnotfullyconsistentwiththedefinitionofcustomaryfishingoutlinedinsection3.2.1

Inrelationtotheimpactontheothersectorsofthisallocation,theinformationtheIFAAChasreceivedisthatthelevelofcustomaryfishingtakeiscurrentlyunreportedandisineffectadditionaltotheexistingSHLcalculationsforrecreationalandcommercialtake.Onthisbasis,noimmediateimpactonthetakeofthecommercialandrecreationalsectorsshouldarisefromthisallocation.

Therelativelysmallamountbelievedtobetaken,andthefishery-independentmeasuresthattheDepartmentofFisheriesusetoassistinthesettingofthebroaderSHLforthefishery,meanthatundercurrentmanagementarrangementsthiscustomaryfishingallocationshouldnotrepresentarisktosustainabilityofthefishery.

Insummary,theIFAACbelievesthatanallocationof200kgforcustomaryfishingisreasonableinitialallocationforthisfisherygiventhat:

• TheIFAACisnotrecommendingproportionalallocationsfortheothersectors(seesection6.2.7).

• TheallocationforcustomaryfishingisinadditiontotheSHLfortherecreationalandcommercialsectorsandhaspriorityoverthosesectors.

Recommendation 9: The customary fishing initial priority allocation for Roe’s abalone in the Perth metropolitan region should be 200 kg.

6.� Proportional Allocations for the Recreational and Commercial Sectors

ThereareanumberofoptionsthatcanbeusedtodeterminetheallocationsforthecommercialandrecreationalsectorsforRoe’sabaloneforthePerthmetropolitanregion.Theoptionsdiscussedinthissection(seeTable4)wereeithercontained

Box 2Accordingto2001censusdata(DepartmentofFisheriessubmission)theweightedpercentageofthepopulationofthePerthmetropolitanregionthatareIndigenousis1.5percent.AssumingthattheIndigenouspopulationparticipateinrecreationalfishingatthesamerateasthenon-indigenouspopulation,thetakeofRoe’sabalonebyIndigenouspeoplewouldbeequivalenttoabout1.5percentoftherecreationaltake.

Partofthis1.5percentwouldbeattributedtorecreationalfishingbyIndigenouspeople,whilepartwouldbeattributedtocustomaryfishingbyIndigenouspeople.

Thepartofthe1.5percentattributedtocustomaryfishingbyIndigenouspeopleisestimatedbytheDepartmentofFisheriestobeapproximately25percent.Inotherwords,itisassumedthat25percentofabalonefishingbyIndigenouspeopleisforcustomarypurposes,whiletheother75percentisforrecreationalpurposes.Thecustomaryallocationwouldthereforebe0.38percent(25percentof1.5percent)oftherecreationalproportionofthecatch.

Assumingtherecreationalsector’stotalallowablecatchis41tonnesthecustomaryallocationwouldbeequivalentto156kg.

Usingthismethod,anallocationofabout156kgwouldbetheinitialprioritycustomaryallocationfortheindigenoussector,notingthatthiswouldbesubjecttoreviewasmoreinformationbecomesavailableoncustomaryfishingbyindigenouspeople.


inasubmissionfromastakeholderortheIFAACconsideredtheycouldbeapplied.

Table4Proportionalallocationoptions

No Source Option

1 IFAACRecreationalproportionequaltotheSHLlesstheTACC(statusquo).

2 IFAACAttheaverageproportionovertheperiod2000-2003

3 IFAACAttheaverageproportionovertheperiod1997-2001(referenceperiod).

4 RFAC55percentrecreational:45percentcommercial

5 AIAWA50:50Basedonnumbersofanimals

6 Recfishwest

Ataproportionwhichwillallowforlong-termgrowthinpopulationandestimatedgrowthinrecreationalactivityortwicethecurrent‘real’share,whicheveristhegreatest

6.�.� Option � - Recreational proportion equal to the SHL less the TACC

Awayofevaluatingtheproportionswouldbetousethetotalallowablecommercialcatch(TACC)forthecommercialsectorasitsshareoftheresource,andcalculatetherecreationalsector’ssharebysubtractionfromthesustainableharvestlevel(SHL)9.Thisapproachcouldberegardedasreflectingthemanagementpracticesoverthelasteightyears,i.e.aTACCof36tonneswithavariablerecreationalcatch.

TheTACCsince1997hasbeen36tonnes(apartfrom1998),whiletheaverageoftherecreationalsector’scatchhasvariedaccordingtoanumberoffactorssuchasmanagementchanges,weatherconditionsandabalonerecruitmentonthereeftop.Underthisoption,iftherehadbeenaSHLof77tonnesandaTACCof36tonnestherecreationalsector’sallocationwouldhavebeenon-average41tonnes(SHL–TACC=TARC)since1997.

Theproportions,givenaSHLof77tonne,wouldbe53percenttotherecreationalsectorand47percenttothecommercialsector.

6.�.� Option � - Average over the period �000-�00�

Afterexaminingthedatatodeterminethemostvalidfigurestouseincomparingthecatchesofeachofthesectorssince1997,theIFAACconcludedthattheperiod2000to2003wasmostvalid.

Thereasonsforchoosingthisperiodarethattheestimatesoftherecreationalsector’scatchfor1997,1998,1999and2004arenotconsideredsufficientlyreliabletousefordeterminingproportionalallocations.For1997,1998and2004theonlyestimateavailablefortherecreationalcatchisfromtherecreationalfieldsurveysandtheseestimatescouldunderestimatethecatchofrecreationaldivers.

In1998thecommercialfisheryonlyfishedforhalftheseasonandthiswouldnotprovideavalidcomparison.In1999therecreationalcatchfigureshavebeenretrospectivelyadjusteddownwardsonthebasisofsubsequentnumber/weightrelationshipandthiscreatessomeuncertaintyabouttherecreationalcatchestimate.

Theaveragecatchesovertheperiod2000-2003were40tonnesfortherecreationalsectorand36tonnesforthecommercialsector.Onaproportionalbasisthisis53percentfortherecreationalsectorand47percentforthecommercialsector.

6.�.� Option � - Average over the period ��7-�00�

TheIFMGovernmentPolicystatesthatcatchsharesshouldbeformalisedovertheperiod1997-2001,andanallocationbasedonthiscriteriacouldbeconsideredtobeconsistentwithGovernmentpolicy(paragraph19,AppendixA).

Theallocationsfortheperiod1997-2001wereestimatedusingthedataprovidedinTable1exceptfor199810.ThecommitteenotedthatRecfishwestarguedthat1998shouldbeincludedinestimatingtheproportionalallocations,buttheIFAACconsideredthatitwasreasonabletoexcludethatyearbecause,ifitwerenotfortheseasondatechange,theTACCwouldhavebeen36tonnes.

UsingthedatafromTable1overtheperiod1997-2001(excluding1998),theproportionswereestimatedas50percentfortherecreationalsectorand50percentforthecommercialsector.

9TheSHLasgiveninFMP204isequivalenttothetotalallowablecatchfortherecreationalandcommercialsectors.10Thecatchesfor1998werenotusedbecausetheTACCforthatyearwasloweredtoaccommodateachangeinseasondates.


6.�.� Option � - �� percent recreational and �� percent commercial

TheRecreationalFishingAdvisoryCommittee(RFAC)believesthattheallocationtotherecreationalsectorshouldbe55percentovertheentirePerthmetropolitanregion.TheRFACemphasisedthesocialvalueofcollectingabaloneandthatspecialweightingshouldbegiventothesocialvalueofcollectingabaloneintheallocationprocess.

Socialvaluewasexplainedintermsoftheenjoymentofferedtopeopleingatheringabaloneandtheopportunitythatthistypeofrecreationalfishingprovidesformembersofthepublictoeataseafoodspeciesthatisconsideredbysometobeadelicacy.

TheRFAChasproposedthatiftheallocationismadeatthesub-regionalleveltheallocationshouldreflectthehistoricalcatchrangesgiveninFMP204.

6.�.� Option � – �0:�0 based on numbers of animals

TheAIAWAhasproposedthatthesplitofallocationsbetweencommercialandrecreationalfishingshouldbe50:50,basedonnumbers.TheAIAWAhasputforwardthefirmviewthat:

“… an allocation based on total take in terms of weight alone would be wrong, and fails to recognise the impact on sustainability of the operations of the commercial and recreational sectors.”

TheAIAWAhashighlightedthatthereisadifferentialimpactonsustainabilitybythetwosectorsbecauseofthedifferenceinthemeansizeandnumbersofabalonetakenbythetwosectors(seeTable5below).TheAIAWAbelievestheIFAACshouldtakethisdifferentialimpactintoaccountinsettingallocationsparticularly,asIFMguidingprinciple(ii)statesthat:

“Sustainability is paramount and ecological requirements must be considered in the determination of appropriate harvest levels.”

TheAIAWAarguedthattakingfewerlargeranimalshaslessimpactonthesustainabilityoftheresourcethantherecreationalsectortakingmoreanimalsat

asmallersize.TheAIAWAbelievesthecommercialsector’sharvestingstrategyiscriticaltomaintainingsustainabilityandthefisheryatcurrentharvestlevels.

AstheAIAWAhasnotgivenspecificdetailsofhowthenumberswouldbecalculated,theIFAAChasthereforedevelopedamethodthatcouldbeusedtoestimatethenumberofanimalsfora77tonnesustainableharvestlevel(SHL)-seeBox3.

Applyingthesemethods,itisevidentthatanallocationofaround350,000animalstoeachsectorwouldtheoreticallyresultinaSHLofabout77tonne.Theproportionsbasedontheestimatedaverageweightofanimalstakenbyeachsectorhavebeenestimatedas42percentfortherecreationalsectorand58percentforthecommercialsector.

Box 3Methodofestimatinganequalnumberofabalone

Usingaverageweightsof0.092kgfortherecreationalsectorand0.129kgforthecommercialsectorfromTable5above,theproportionoftheSHLfortherecreationalsectorinweightcanbecalculatedas:

0.092kg/(0.092kg+0.129kg)=41.63percent

Thispercentagecanthenbeconvertedtonumbers,dependingontheSHL.ForanSHLof77tonnes,thiswouldbeequivalenttoabout:

(0.42/77,000)kg/0.092kg=348tabaloneeach

6.�.6 Option 6 - Twice the current ‘real’ share or �0 years growth

Initswrittensubmission,Recfishwesthasproposedthattherecreationalsectorshouldbeallocatedtwiceitscurrent‘real’shareoritsprojectedcatchafter20years,whicheveristhegreatest.

TheIFAACfoundthattheproposalbyRecfishwestofusingprojectedcatchesafter20yearstobeproblematic,giventhestrictcontrolsthatthisfisheryoperatesunder.

Table5Minimumsize,meanweightandnumberstakenbytherecreationalandcommercialsectors

Sector Min.Size(mm) Meanweight(g) EstimatedNumberstaken

Commercial 70 129(138–120) 280,000

Recreational 60 92 330,300–481,300


Togainanunderstandingofwhattheprojectedcatchoftherecreationalsectorwouldbein20yearsonthebasisofcurrentfigures,theIFAACreferredtoFigure6inFMP204.Itisevidentfromthatfigurethattherewasnoobviousgrowthintherecreationalcatchestimatefrom1997,bearinginmindthattherecreationalcatchfor2005islikelytobelowerthanitwasin2004(DoFpers.comm.).

ThisisunsurprisingasgrowthbythecommercialandrecreationalfisheriesinthePerthmetropolitanregionhasbeenrestrainedbystrictmanagementarrangementsforsometime.Giventhesefactors,theIFAAChasnotusedprojectedgrowthasabasisforconsideringallocations,norhasitincludeditasoneoftheoptionslistedinTable6below.

Inseekingfurtherinformationonthe‘twicerealcatchshare’proposalbyRecfishwest,theIFAAChasbeeninformedthatRecfishwesttakestheviewthatthe‘real’catchshareisthecatchsharethatincludesboththequantityofabalonekeptandthosediscardedbyrecreationalfishers(Recfishwestpers.com.).

Inpracticalterms,thismeansthatRecfishwestbelievesthatanadditionalamount,equaltothediscardsofrecreationalabalonefishers,shouldbeaddedtotherecreationalcatchestimatesgiveninFMP204.

Anallocationtotherecreationalsectoroftwiceitscurrent‘real’catchwouldmean100percentoftheresourcewouldbeallocatedtotherecreationalsector(notethisapparentlyassumesthatthecommercialdiscardrateisclosetozero).However,Recfishwestappreciatesthata100percentallocationtotherecreationalsectorisnotlikelytobeacceptable,andthereforehasapreferenceforarrangementsthatinvolvetheuseofspatialseparationtoresolveresource-sharingconflictsinthePerthmetropolitanregion(Recfishwestpers.com.).

6.�.7 Discussion of proportional allocation options

TheproportionthatwouldbeallocatedtoeachsectorundereachoftheoptionsdiscussedaboveisoutlinedinTable6.

Table6Allocationoptionsexpressedasproportionsbyweight

Option Source

Proportion(%)

Recreational Commercial

1 IFAAC 53 47

2 IFAAC 53 47

3 IFAAC 50 50

4 RFAC 55 45

5 AIWIA 42 58

6 Recfishwest* 100 0*Recfishwestpreferenceistousespatialseparationtoresolveresource-sharingconflicts

Option1(theSHLlesstheTACC)isthepreferredproportionalallocationoftheIFAACasitbestrepresentsthecurrentmanagementpractice,whichhasbeeninplacesince1997.Thiswouldalsobethesameallocationifthedatasetovertheperiod2000to2003isused,asinOption2.

Option3,whichwouldmeantheallocationswouldbebasedondataoverthe1997–2001period,isproblematicalbecauseofconcernstheIFAAChasaboutthedataforthe1997,1998and1999(seesection6.2.3).Therewould,ineffect,onlybetwoyears(2000and2001)overthatperiodinwhichcatchescouldbecompared.

AlthoughnotthatdifferentfromallocationsunderOptions1and2,Option4isarbitraryanddifficulttojustifyincomparisontoallocationsthatarebasedonhistoricaldataormanagementpractices.

Option5isanalternativeapproachtoallocationsthattheindustrybelievesaccountsforthedifferentimpactseachofthesectorshasonthestocksustainability.Theoptionisasubstantialdeparturefromthestatusquobecauseitisbasedontherecreationalsectortakinglessanimalsonaverageandthecommercialsectortakingmoreonaveragethanhasbeenthecaseinrecentyears.Managingallocationonnumberswouldmeanthattherewouldbethenecessitytointroducenewmanagementarrangementstoregulatetherecreationalcatch.

Options1and2arepreferredoverOption5becausetheyaremorecloselymatchedwiththeIFAAC’sguidingprinciples,particularlyprinciples(i)and(v)(seesection3.3).


Option6isbasedonRecfishwest’sprincipleinrelationtoaccommodatingnaturalgrowthoftherecreationalsector,oranallocationoftwiceitscurrent‘real’catchshareoritsprojectedcatchafter20years.Inpracticalterms,implementationofthisoptionwouldmeanthatinthelongtermtherewouldbeasubstantialreallocationtotherecreationalsector.

AsanallocationofthisnaturerepresentsasubstantialdeparturefromIFAAC’sguidingprinciples(section3.3)Option6waslesspreferredthanotheroptionsthatmorecloselymatchedthecommittee’sprinciples.

Asdiscussedpreviously,i.e.theIFAACisrecommendingacontinuationofseparatemanagementforthetwodistinctabalonefisheriesinthePerthmetropolitanregion(i.e.recreationalandcommercial).However,itisimportanttonotethattheIFAACbelievesthereshouldnotbeasubstantialchangetothecurrentcatchproportionsuntilthereismoreinformationonhowchangesincatchproportionsimpactontheSHL.

Recommendation 10: When at a future time it becomes appropriate to manage the recreational and commercial sectors on a fully integrated basis, then the starting point for proportional allocations in the Perth metropolitan region should be an allocation of 53 percent for the recreational sector and 47 percent for the commercial sector.

6.� AquacultureTheAquacultureCouncilofWesternAustralia(ACWA)hasstatedthat,basedontheprojectedsizeoftheabaloneindustryin2015,thesectorwouldrequireaccessto200kgofbroodstockperspecies.

AccordingtotheACWA,thisaccesswouldberequiredforstart-upenterprises,butmoreimportantlyfortheinclusionofnewgeneticmaterialfornewtraitsaspartofselectivebreedingprograms.TwohundredkilogramsofRoe’sabalonebroodstockisequivalenttoabout1,550animals,basedonanaverageweightof129g(Table5).

Thebestavailableinformationindicatesthatfewerthan200Roe’sabalonearetakeninthePerthmetropolitanregionforaquaculturepurposesunderaMinisterialexemption.Theremaythereforebeacasetoallocate200Roe’sabaloneinthePerthmetropolitanregiontotheaquacultureindustry,whichisasmallamount(about26kgs)andwouldnothaveanimpactonthesustainabilityoftheresource.

However,thistypeofallocationraisesanumberofpolicyissuessuchas:“whoholdstheallocation?”,“isittransferable?”,“howisitdistributedbetweencompetingaquaculturalists?’and“inacostrecoveredenvironment,whowouldpayforthemanagementandmonitoringofthistakeforcommercialpurposes?”Noadvicewasreceivedastowhythisrelativelysmallcatchcouldnotbeaccessedviathecommercialsector.

TheIFAAC’Sview,giventhesmallamountrequiredforbroodstockpurposes,isthatprovidedtheaquacultureindustrycanaccessitsrequirementsviatheexistingexemptionprocessorfromthecommercialsector,aspecificallocationisnotnecessary.TheIFAACbelievesthispositionreflectsitspragmaticandpracticalapproachtoconsideringallocations.

Recommendation 11: Access to Roe’s abalone in the Perth metropolitan region for aquaculture purposes should only be by Ministerial exemption. Should there be a regular and ongoing need to access the resource, then the aquaculture sector should make appropriate arrangements with the commercial sector for access to broodstock.


7.� Reallocation Mechanisms Asdiscussedintheprevioussection,theIFAACisnotproposingtheintroductionofallocationsforRoe’sabaloneinthePerthmetropolitanregionfortherecreationalandcommercialsectorsatthisstage.Asallocationsareobviouslyanecessaryprecursortoreallocations,areallocationmechanismisnotrecommendedforRoe’sabaloneuntilallocationsareintroduced.

AnexampleofatradebetweenthetwosectorsisprovidedinBox4toillustratethecomplexityoftheissuesandtheuncertaintyinvolvedinthetradingallocationsbetweenthetwosectors.

ThediscussioninBox4isbynomeansexhaustive,butisusedprimarilytodemonstratethat,atthisstage,therearesomanyimponderablesregardingthecomparabilityoftherecreationalandcommercialsectors’catchesofRoe’sabaloneinthePerthmetropolitanregionthatitwouldbeinappropriatetointroduceareallocationsystem.

Recommendation 12: When at a future time it becomes appropriate to manage the recreational and commercial sectors on a fully integrated basis, including a sufficient understanding of the comparability of catches of the two sectors, a reallocation mechanism should be introduced.

7.� Management of the Recreational Sector’s Allocation

TheIFAACnotesthatmanagementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation(Guidingprinciplex,seesection3.1.2)andappropriatemanagementstructuresandprocessesshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation(Guidingprinciplevii,seesection3.1.2).

Althoughallocationsarenotbeingrecommendedatthisstage,itisclearthatthecurrentmanagementarrangementsappliedtotherecreationalsectordonotallowforaconsistentharvest.Theresearchcitedpreviouslyindicatesthattheremaybesignificantadvantagesaccruingtotherecreationalusersofanychangesthatoccurinthemanagementoftherecreationalabalonefishery.

Thedominantfactordeterminingtheharvestoftherecreationalsectoristheweatherconditions.

TheAIAWAhasproposedthattheallocationoftags(say,differentcoloursforeachweekoftheseason)andalimitonthenumberoftagsanindividualmaypurchaseisusedasamethodofmanagingtherecreationalsector.Theuseoftagsisaverydirectmethodofmanagingthetotalcatchoftherecreationalsectorandhasmerit,buthassome

Box 4Therecreationalsectormaywanttoincreaseitscatchfromthereefplatformbytwotonnes,therebyincreasingitsproportionofthetotalcatch,andpurchasetwotonnesofquotafromthecommercialsector,notingthatwhatisbeingtradedistwotonnesof70+mmanimalstakensubtidallyinorderfortherecreationalsectortotaketwotonnesof60+mmanimalsfromthereefplatform.

Thereareanumberofpossiblescenariosthatcouldresultfromsuchatrade,butthefollowingscenarioisdescribedtoillustratesomeoftheissuesinvolved.

Therecreationalsectorcouldtakeanadditionaltwotonnesintheshorttermfromthereefplatform,butfindthatthereisinsufficientrecruitmenttomaintainincreasedexploitationonthereefplatform,soovertimetheabundanceofabaloneonthereefplatformfalls.

Atthesametime,stockindicatorsshowthatthesubtidalstockincreasesbecausethereislessexploitation.Astherecreationalsectordoesnotgenerallyexploitthesubtidalarea,itisunlikelytobeabletotaketheadditionalallocationfromtheincreasedsubtidalabundanceofabalone.Underthisscenario,thecatchfromthereefplatformmayhaveultimatelytobereduced,representinganoverallproportionalreductionincatchofbothsectors.

7 OTHER ISSUES


significantissuesassociatedwithimplementation,including:

• tagdesign(i.e.howtodesignatagthatcanbeplacedon/inanabalone?);

• thecostofimplementingthesystemandthecostoftags;

• administrationofthesystem;

• tradingoftags;and

• associatedchangestomanagementthatwouldberequiredtocomplementatagsystem.

TheIFAACrecommendsthattheDepartmentofFisheriesworkwiththerecreationalsectorto:developamanagementregimewhichwillminimiseincidentalmortality;optimisethesocialandeconomicbenefitsfromrecreationalRoe’sabalonefishing;andallowthesectortoachievethetotalallowablerecreationalcatch.

Recommendation 13: The Department of Fisheries work with the recreational sector to develop a management regime which will reduce incidental mortality and catch variability between years, and improve the social and economic benefits from recreational fishing.

7.� Monitoring allocationsTheIFAAC’sviewisthatitwasneverintendedthatresourcereallocationneedstorespondonareal-timebasis,butshoulddealwithtrendsintheutilisationoffishtowardsmakinglong-termadjustmentsbetweensectorstoreflectlong-termchanges.

Thechallengewillbetofindasetofprinciples/performanceindicatorsthataccountforyear-to-yearvariationincatches,soastoattempttosetlonger-termadjustmentofbusinessrulesforeachofthesectors.

7.� Allocations Outside the Perth Metropolitan Region

TheMinisterhasindicatedtothecommitteethathewouldacceptadviceonproposalstoresolveresource-sharingconflictsoutsidethePerthmetropolitanregionthatarebroadlysupportedbystakeholders(seeAppendixF).

TheRFAC,RecfishwestandDepartmentofFisheriesareallproposingspatialclosuresaroundmajor

southcoastboatrampsandtemporalclosurestocommercialfishingonweekendsandpublicholidaystoreduceconflictoutsidethePerthmetropolitanregion.

Thesetypesofchangestomanagementarrangementshavethepotentialtoreduceconflict,but,todate,thecommercialsectorhasnotshownaninterestinpursuingtheseapproaches.

Inordertoprogresstheissue,theIFAACwillseekdetailedinformationonthelocationproposedtobeclosedandanypossibleimpacts,includinganassessmentbytheDepartmentofFisheriesofanyproposals.TheIFAACisthereforeencouragingstakeholders,includingtheDepartmentofFisheries,tonegotiatearrangementsoverthesubmissionperiodthatwillreduceconflictandpresentthecommitteewithdetailedproposalspriortothecloseofsubmissions.

Ifthereisinsufficienttimefornegotiationsduringthesubmissionperiod,theIFAACrecommendsthattheDepartmentofFisheriesconveneandfacilitatefocusgroupmeetingsinregionalareastonegotiateagreementoverchangestoreduceresource-sharingconflicts.

Recommendation 14: Given the low level of interest shown by stakeholders in negotiating solutions to resource-sharing conflicts outside the Perth metropolitan region, the Department of Fisheries should facilitate negotiations between sectors aimed at resolving these conflicts.

Recommendation 15: Major abalone resource-sharing conflicts, outside the Perth metropolitan region, that remain unresolved two years after the date of decision on the recommendations in this report should be referred to the IFAAC for resolution.

7.� Management CommitteesThetworelevantpoliciesregardingmanagementofallocationsare:

GuidingPrinciplevii(seesection3.1.2)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(seesection3.1.2)statesthat:

“Management arrangements must provide users with the opportunity to access their allocation…”

TheDepartmentofFisheries’managementfunctionsareoftencarriedoutinconsultationwithstakeholders’representativesandthroughMinisterialAdvisoryCommittees.Forabalone,theAbaloneManagementAdvisoryCommittee(AbMAC)hasbeenestablishedundertheFishResourcesManagementAct1994toprovideadvicetotheMinisterforFisheriesonabalonemanagementissues.

TheRecreationalFishingAdvisoryCommittee(RFAC)isanotherstatutorycommitteeestablishedundersection4oftheFish Resources Management Act 1994thatprovidesadvicetotheMinisterforFisheriesonallrecreationalfisheries,includingabalone.

ThemajorityoftheAbMACmembershipiscommercialfishers,anditprimarilyprovidesadviceonmanagementofthecommercialsector.Incontrast,themajorityoftheRFACmembersarerecreationalfishersanditprovidesadviceonlyonrecreationalfishing.TheMinisterthereforereceivesadviceonmanagementoftheabaloneresourcefromtwodifferentcommittees-onewithacommercialfocusandtheotherwitharecreationalfocus.

RepresentativebodiessuchasRecfishwestalsoprovide‘input’intoabalonemanagementissuesandapproachtheMinisterdirectly.

OneoftheoutcomesexpectedtoflowfromthedeterminationofallocationsundertheIFMprocessisthateachsectortakesagreaterresponsibilityformaximisingthebenefitfromitsallocation.Therecreationalsectorinparticularmayalsobeexpectedtobenefitfrommoredirectinvolvementinthemanagementoftheirallocation.Appropriatestructuresalsoneedtobeinplaceinrelationtotheparticipationofcustomaryfisheries.

Theexistingmanagementstructuresoutlinedabovemaynotbethemostappropriateforthesepurposesandthereisaneedtodeterminewhatchanges,ifany,arerequiredtocurrentinstitutionalarrangements.

AllmajorstakeholdershavereferredtotheneedtohaveappropriatemanagementstructuresinplacetotakeadvantageoftheopportunitiesthatIFMwill

providesectors.Forexample,theNationalNativeTitleTribunalhasidentified:

“…the absence of a means for consistent informed input from indigenous people is a major impediment to the development of an effective IFM system.”

TheWesternAustralianFishingIndustryCouncil(WAFIC)hasstatedthattheGovernmentneedsto:

“Devolve the responsibility… for use of these shares to credible institutions that genuinely involve and represent individuals and groups that access the shared fish stocks…”

Inparticular,theWAFICbelievestherewouldbevalueinexaminingtheformationofarecreationalabaloneadvisorycommittee.TheWAFIChasidentifiedthecompositionandfunctionsofthecommittee,andcommentedthatthisapproachmayrequireadditionalresourcesbeingallocatedtoRecfishwest,ortheformationofanadvisorycommitteeunders41ofthe Fish Resources Management Act 1994(WAFICsubmission).

TheRFAChasidentifiedthatlicensedrecreationalabalonefishersmaynotbeadequatelyrepresentedincurrentadvisoryorlobbygroupssuchastheRFACandRecfishwest.TheRFACbelievesthatrepresentationonMACsshouldreflecttheproportionofthecatcheachsectorisallocated.

TheIFAAChasbeenadvisedthatmanyrecreationalabalonefishersareofVietnameseorChinesedescent.Inaddition,manyoftheseparticipantsarenototherwiseactiverecreationalfishers.

Giventhesefactorsthereareparticulardifficultiesincommunicatingwiththesecommunitygroupings.TheIFAACbelievesthespecialconsiderationshouldbegiventohowpeopleofVietnameseandChinesedescentareincludedintheconsultationprocessandrepresentedinmanagementdeliberations.

Giventhesestakeholderviewsandtheethnicbackgroundofmanyoftherecreationalabalonefishers,theIFAACsupportsareviewofmanagementstructuresandinstitutionstodeterminewhetherthereisneedforchangetoenablethesectorsandlicenceholderstohavemoreinvolvementinthedevelopmentoffuturemanagementarrangementsunderIFM.

TheIFAACencouragestheDepartmentofFisheries,inconsultationwithstakeholders,tocommence


developingtheappropriatemanagementstructuresandmanagementarrangementsthatwilldealeffectivelywiththeseimportantmattersassoonaspossible.

Recommendation 16: The Department of Fisheries progressively develop, in consultation with stakeholders, the necessary regulatory and consultative structures that account for:

• the need to include people of Vietnamese and Chinese background who do not have regular contact with the Department of Fisheries;

• the reconstitution of the abalone management advisory committee to deal equitably with recreational and commercial issues, and enable negotiations within and between the sectors; and

• the need to give effect to the Government’s IFM policies contained in Guiding principles vii and x (see section 3.1.2).

7.6 Broader Legislative ArrangementsTheWAFIChasmadethepointinitssubmissiontotheIFAACthatincorporationofdecisionsaroundallocationsandpoliciesadoptedbyGovernmentthroughlegislationisextremelyimportant,asitdemonstratestothecommunitythattheGovernmentisseriousaboutthisinitiative.

Further,theWAFICarguesthattheimplementationofallocationdecisionsinlegislationwillalsoprovideaddedsecurityandconfidencetosectorsabouttheiraccesstotheirshareoftheresource.Asaresult,theWAFICproposestheintroductionofaMinisterialPolicyGuidelineonthesematters.

ThisviewisconsistentwiththeIFMGovernmentPolicy(paragraph9,AppendixA),whichstatesthat:

“Allocation processes will be developed in the context of policy guidelines set by the Minister. In the longer term, it may be desirable to amend the Fish Resources Management Act 1994 to incorporate allocation processes.”

TheIFAACconsidersthatthisisamatterthatisalreadycoveredbytheGovernmentPolicyonIFM,whichwasreleasedin2004andthetimingofthedevelopmentofaMinisterialPolicyGuidelineisamatterfortheMinisterforFisheries.

DepartmentofFisheries,WesternAustralia,website:www.fish.wa.gov.au

DepartmentofFisheries,2002.ApplicationtoEnvironmentAustraliaontheAbaloneManagedFishery,November,2002.

DepartmentofFisheries,2005,IntegratedFisheriesManagementReportAbaloneResource,FisheriesManagementPaper,No204,Perth,WesternAustralia.

Dortch,C.E.,GKendrickandK.Morse1984,AboriginalmolluscexploitationinsouthwesternAustralia’,ArchaeologyinOceania19,pp81-104.

Hancock,B.TandCaputi,N.inpress,TheRoe’sabalonefisherynearPerthmetropolitanarea,WesternAustralia.J.ShellfishResearch

Hancock,B.2000.GeneticsubdivisionofRoe’sabalone,HaliotisroeiGrey(Mollusca:Gastropoda),insouth-westernAustralia.Mar.FreshwaterRes.51679-687.

McLeod,R.andJ.,Nicholls2004.Asocio-economicvaluationofResourceAllocationoptionsbetweenrecreationalandcommercialfishinguses.FRDCProject2001/065

NationalNativeTitleTribunal,2005,NationalIndigenousFishingTechnicalWorkingGroup,website: www.nntt.gov.au,AccessedJune,2005.

Wright,G.,2005,AnoverviewoftheevidenceforIndigenousfisheriesonthewestandsouthcoastsofWesternAustralia,NationalNativeTitleTribunal,ResearchReport.

REFERENCES


APPENDICES


General1. TheGovernmentiscommittedtothe

implementationofanintegratedmanagementsystemforthesustainablemanagementofWesternAustralia’sfisheries.

2. Theintegratedmanagementsystemwillbeopenandtransparent,accessibleandinclusiveandflexible.

Information requirements3. Thedevelopmentandfundingofanappropriate

researchandmonitoringprogramencompassingallusergroupsisessentialtoprovidethenecessaryinformationforsustainabilityandallocationissuestobeaddressedunderanintegratedframework.Thisprogramwillbeprogressivelyphased-inoveranumberofyearsasmorefisheriesarebroughtundertheintegratedmanagementframework.

4. TheDepartmentofFisherieswill,inconsultationwithusergroups,investigateoptionsforstandardisingcatchinformationbetweensectors,notingthatthescalefordatacollectionandreportingmustbeappropriateforeachparticularfishery.

Guiding principles for management5. Thefollowingprincipleswillbeadopted(by

incorporatingthemintoeitherlegislation,MinisterialPolicyGuidelinesorpolicyasappropriate)asthebasisforintegratedfisheriesmanagement.

i) FishresourcesareacommonpropertyresourcemanagedbytheGovernmentforthebenefitofpresentandfuturegenerations.

ii) Sustainabilityisparamountandecologicalrequirementsmustbeconsideredinthedeterminationofappropriateharvestlevels.

iii) Decisionsmustbemadeonbestavailableinformationandwherethisinformationisuncertain,unreliable,inadequateornotavailable,aprecautionaryapproachadoptedto

managerisktofishstocks,marinecommunitiesandtheenvironment.Theabsenceof,oranyuncertaintyin,informationshouldnotbeusedasareasonfordelayingorfailingtomakeadecision.

iv) Aharvestlevel,thatincorporatestotalmortality,shouldbesetforeachfishery1andtheallocationdesignatedforusebyeachgroupshouldbemadeexplicit.

v) Allocationstousergroupsshouldaccountforthetotalmortalityonfishresourcesresultingfromtheactivitiesofeachgroup,includingbycatchandmortalityofreleasedfish.

vi) Thetotalharvestacrossallusergroupsshouldnotexceedtheprescribedharvestlevel.Ifthisoccurs,stepsconsistentwiththeimpactsofeachusergroupshouldbetakentoreducethetaketoalevelthatdoesnotcompromisefuturesustainability.

vii) Appropriatemanagementstructuresandprocessesshouldbeintroducedtomanageeachusergroupwithintheirprescribedallocation.Theseshouldincorporatepre-determinedactionsthatareinvokedifthatgroup’scatchincreasesaboveitsallocation.

viii) AllocationdecisionsshouldaimtoachievetheoptimalbenefittotheWesternAustraliancommunityfromtheuseoffishstocksandtakeaccountofeconomic,social,culturalandenvironmentalfactors.Realistically,thiswilltaketimetoachieveandtheimplementationoftheseobjectivesislikelytobeincrementalovertime.

ix) Allocationstousergroupsshouldgenerallybemadeonaproportionalbasistoaccountfornaturalvariationsinfishpopulations.Thisgeneralprincipleshouldnothoweverprecludealternativearrangementsinafisherywherepriorityaccessforaparticularusergroup(s)maybedetermined.Itshouldremainopentogovernmentpolicytodeterminethepriorityuseoffishresourceswherethereisaclearcasetodoso.

APPENDIX AINTEGRATED FISHERIES MANAGEMENT GOVERNMENT POLICY � OCTOBER �00�

1 FisheryisdefinedundertheFRMAasoneormorestocksorpartsofstocksoffishthatcanbetreatedasaunitforthepurposesofconservationormanagement;andaclassoffishingactivitiesinrespectofthosestocksorpartsofstocksoffish.


x) Managementarrangementsmustprovideuserswiththeopportunitytoaccesstheirallocation.Thereshouldbealimitedcapacityfortransferringallocationsunutilisedbyasectorforthatsector’suseinfutureyears,providedtheoutcomedoesnotaffectresourcesustainability.

Morespecificprinciplestoprovidefurtherguidancearoundallocationdecisionsmayalsobeestablishedforindividualfisheries.

Sustainable harvest levels6. Asustainabilityreportwillbepreparedforeach

fisheryinaccordancewiththe‘PolicyfortheimplementationofecologicallysustainabledevelopmentforfisheriesandaquacultureinWesternAustralia’.

7. TheExecutiveDirector,DepartmentofFisheries,willapproveasustainabilityreportforeachfishery,whichincludesaclearstatementontheharvestlevel.

Allocation processes8. AnIntegratedFisheriesAllocationAdvisory

Committeewillbeestablishedunders42oftheFishResourcesManagementAct1994(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. Whereareallocationofresourcesfromone

usergrouptoanotherresultsindemonstrablefinanciallosstoalicensedfisherman,inprinciplethereshouldbeconsiderationofcompensation.Compensationmaytakevariousformsanddesirablydoesnotnecessarilyinvolvethepaymentofmoney.TheDepartmentofFisherieswillreviewthescopeoftheFisheriesAdjustmentSchemeAct1987toensureitcontainssufficientflexibilitytoencompasstheseprinciplesunderanintegratedmanagementsystem.

15. Casesforcompensationshouldbeassessedontheirmerits.

16. Prioritywillbegiventoinvestigatingthepotentialdevelopmentofmarketbasedsystemstoachievereallocations,alongwithdueconsiderationofsocialequityconsiderations,assoonaspractical.Clearly,considerationofanymarketbasedsystemwillbebasedonitsmerit.

17. Nocompensationshouldbepayablewhereadjustmentsaremadeforsustainabilityreasons.

Effective sectoral management18. TheGovernmentiscommittedtointroducing

moreeffectivemanagementacrossallfisheries.Theimplementationofmoreeffectivesectoralarrangementsinwhichthecatchofasectorcanbecontainedisanessentialfirststepintheintroductionofanewintegratedmanagement


systemwithinwhichallocationissuesmaybeaddressed.Intheinterim,eachsectorwillcontinuetobemanagedresponsiblywithincurrentcatchrangesandshouldthecatchofasectoralterdisproportionatelytothatofothersectors,theMinisterwilltakeappropriatemanagementactiontoaddressthis.

19. Itisimportanttoformaliseexistingsharesasabasisforfutureallocationsdiscussions.Thesewillbeformalisedonthebasisofproportionalcatchsharesusingthebestavailableinformationduringthefiveyearperiodfrom1997to2001.

20. RecreationalfishingplansfortheWestCoastandGascoyneregionswillbeimplementedwitheffectfrom1October2003toprovideamoreeffectiveframeworkformanagingrecreationalfisheries.AreviewoftheNorthandSouthCoastregionsisalsounderway.

21. Areviewofthecommercialwetlinefisheryhascommenced.Managementoutcomesmustinvolvetheremovalofexcessfishingcapacityfromthefisheryandtheestablishmentofadedicatedcommercialfisherywithclearentrycriteriaandanappropriatelimitoncatchineachbioregion.

Funding22. Theinitiativecanbecommencedwithin

the2004/05budgethoweverresourcingrequirementswillincreaseasmorefisheriesarebroughtunderaintegratedframework.FuturefundingwillbeconsideredthroughtheGovernmentbudgetprocess.

23. TheGovernmentwillconsiderseekinggreatercontributionsfromallusersovertimecorrespondingtogrowingcertainty/securityoveraccessasallocationmodelsareimplementedineachfishery.


Integrated Fisheries Management Allocation Process (from working draft paper)

IntroductionGovernmentPolicy2004onIntegratedFisheryManagement(IFM)statesthattheMinisterwilldeterminetheprocessandtimeframesforresolvingallocationineachfisherybasedontheadviceoftheIntegratedFisheriesAllocationAdvisoryCommittee(IFAAC).

A. Determining the Need for a Formal Allocation process in a Fishery

TheMinisterforFisherieshasrequestedthatIFAACbeginwiththeWesternRockLobsterFishery,AbaloneFisheryandtheWestCoastDemersalFinfishFishery.

InthefuturetheIFAACwillconsultbroadlyastofisheriesthatshouldbeincludedintheIFMprocessandadvisetheMinisterforFisheriesaccordingly.

B. Development of an Integrated Fishery Management Fishery Report - Department of Fisheries

Thesettingofsustainableharvestlevelsisfundamentaltoensuresustainablemanagement.AnIntegratedFisheriesManagementFisheryReportwillbepreparedbytheDepartmentofFisheriesforeachfisherythatistobesubjecttotheIFMprocess(IFMGovernmentPolicy,2004,paragraphs6&7).

Thereportswillcontaindetailssuchas:

• Thecurrentmanagementpracticeswithinthefishery;

• Historicalcatchlevelsorestimatesofcatchtakenbyeachsector;

• Thebiologyofthefishspeciesinvolved;

• Thesustainableharvestleveloftheresource;and

• Otherrelevantdatasuchasregionalemployment,economicandsocial/lifestyleissues.

Inshortthereportshouldbearobustsummaryofthefactsaboutthefishery.

TheDepartment,indevelopingthesereports,willconsultwiththekeystakeholdergroups.TheIFMreportwillbeapprovedbytheExecutiveDirector,DepartmentofFisheriesandwillincludeaclearstatementofthesustainableharvestlevel.

C. The Integrated Fisheries Allocation Process.

Step � – Investigation of the allocation issueIFAACwillreceivetheIFMReportandthenconductpreliminaryinvestigationsintotheallocationissueby:

• SeekingsubmissionsandconsultingwiththepeakstakeholdergroupssuchtheWesternAustralianFishingIndustryCouncil,Recfishwest,ConservationCouncilofWesternAustraliaandbodiesrepresentingIndigenousinterests.

• Drawingontheknowledge,data,technicalmaterialandexperienceavailablewithregardtotheparticularfisherybothfromtheDepartmentofFisheriesandasappropriatefromothersources.

• Identifyingareasofagreementanddisagreementbetweenthedifferentparties.

Aspartofitsconsiderations,IFAACmayrequesttheDepartmentofFisheriestofurtheradviseontheecological,economicandsocialimpactsofanyproposedchangeinresourceallocation.Followingtheseactions,IFAACwillformaliseitsinitialposition.

Step � - IFAAC settles draft allocation report and releases for public comment.OnceIFAAChascometoaninitialpositionwithregardtoallocation,thiswillbedocumented,alongwiththereasonsforitsconclusions,andwillrecommendtotheMinisterthatitbereleasedasa‘draftallocationpaper’forpubliccomment,invitingsubmissions.

Thisstageintheprocesswillallowthoseinvolvedinfishing,managingandresearchingthefishery,aswellasthoseinthewidercommunitywhomayhaveaspecificinterestinthisfisherytoprovide

APPENDIX BINTEGRATED FISHERIES ALLOCATION ADVISORY COMMITTEE


additionalinput.Dependingonthecircumstancesoftheparticularfishery,IFAACmayholdoraskDepartmentalOfficerstoundertakemeetingsinrelevantmetropolitanandregionallocationstoenableindustry,recreationalfishersandcommunitymemberstoinputtheirviewsintotheIFAACprocess.

Thecommentperiodwillbenormallyforaperiodoftwomonths.

Step � - IFAAC recommends an allocation to the Minister for FisheriesOncethecommentperiodhasclosed,andIFAAChasconsideredthesubmissionsreceivedIFAACwillfinaliseitspositionandsubmitafinalallocationreporttotheMinister.

Step � - Determination by the Minister (IFM Government Policy, �00�, paragraph ��)TheMinisterforAgriculture,ForestryandFisheriesisresponsibleforconsideringtherecommendationsofIFAACanddeterminingtheallocations.Theallocationsarelikelytobefixedforaperiodofaboutfiveyears.

TheMinisterhasagreedtoprovideastatementofdecisiononannouncementofhisdeterminationinanallocationmatter.TheMinistermaymakepublicIFAAC’sreportatthesametimeashisstatementofdecisionisreleased.(IFMGovernmentPolicy,2004,paragraphs11,12&13)

D. Mechanisms for future allocations between sectors (IFM Government Policy �6)

TheTooheyreportstatesthatthe‘Communityexpectationsanddemandsovertheuseoffishresourceswillchangeovertimesoanintegratedframeworkmustallowforadjustmentsinallocationstooccur,bothwithinandbetweensectors’.IFMGovernmentPolicyparagraph16statesthatprioritywillbegiventoinvestigatingthedevelopmentofamarketbasedsystemtoachievereallocations,alongwithsocialequityconsiderations,assoonaspractical.

IFAACproposestoinvestigatepossiblemechanisms,consultwithstakeholdersonproposalsthroughapublicprocessandprovideadvicetotheMinisteronpreferredoptions.InformulatingitsrecommendationsIFAACwillhaveregardtoGovernmentPolicyParagraphs14to17.


APPENDIX CSOURCE FOR STAKEHOLDER SUBMISSIONS TO THE IFAAC

Department of Fisherieshttp://www.fish.wa.gov.au/docs/op/op032/index.php

Recfishwesthttp://www.recfishwest.org.au/SubIFMAbaloneFMP204.htm

Recreational Fishing Advisory CommitteeContact: DougBathgatePhone: 94827332

WA Fishing Industry Councilhttp://www.wafic.com.au/key_issues/submissions_and_reports.phtml

Aquaculture Council of Western AustraliaContact: DanMachinPhone: 94928814

Abalone Industry Association of WAContact: IanTaylorPhone: 0419903421

National Native Title TribunalContact: GuyWrightPhone: 92689700


APPENDIX D MINISTERIAL LETTER ON CUSTOMARY FISHING


APPENDIX EMINISTER LETTER ON ALLOCATIONS TO THE CONSERVATION SECTOR


APPENDIX FMINISTERIAL LETTER ON ALLOCATIONS WITHIN THE PERTH METROPOLITAN REGION


APPENDIX GDEPARTMENTAL LETTER ON MANAGEMENT BY

SUBREGIONS WITHIN THE METROPOLITAN REGION


APPENDIX HDEPARTMENTAL LETTER ON THE CUSTOMARY TAKE OF ABALONE


APPENDIX IDEPARTMENTAL LETTER ON THE SUSTAINABLE HARVEST LEVEL AND INCIDENTAL MORTALITY

ROE’S ABALONE – PERTH METROPOLITAN REGION 6�

6� INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

AbMAC AbaloneManagementAdvisoryCommittee

AIAWA AbaloneIndustryAssociationofWesternAustralia

FMP 204 FisheriesManagementPaperNo.204

FRMA FishResourcesManagementAct1994

IFAAC IntegratedFisheriesAllocationAdvisoryCommittee

IFM IntegratedFisheriesManagement

NNTT NationalNativeTitleTribunal

RFAC RecreationalFishingAdvisoryCommittee

SHL Sustainableharvestlevel

TAC Totalallowablecatch

TACC Totalallowablecommercialcatch

TARC Totalallowablerecreationalcatch

WAFIC WesternAustralianFishingIndustryCouncil

GLOSSARY OF ACRONYMS

ROE’S ABALONE – PERTH METROPOLITAN REGION 6�

NOTES

6� INTEGRATED FISHERIES MANAGEMENT DRAFT ALLOCATION REPORT

NOTES

integrated fisheries management - fish… · integrated fisheries management draft allocation...

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