Tropical Tuna
M a n a g e m e n t Ad vi s o r y C o m m i t t e e
( T T M AC )
CHAIR’S SUMMARY
MEETING 4
18 JANUARY 2011
Tropical Tuna MAC (TTMAC)
CHAIR: Mr Bill Nagle
Date 18 January 2011
Tropical Tuna MAC met in Sydney to finalise its recommendations on Total Allowable Commercial
Catches (TACCs) for the Eastern Tuna and Billfish Fishery (ETBF) in expectation of the commencement of
quota management in March 2011.
The MAC was well attended (Attachment 1). The MAC Chair noted an apology from Mr Edwards
(recreational and charter member) and acknowledged his submission on the TACCs. The Committee was
pleased Mr Williams (recreational sector) was able to attend to provide recreational input.
Apologies were accepted from Mr Jefferies (industry invited participant) and Dr Kerrigan (state invited
participant). The MAC Chair noted that Dr Kerrigan (DEEDI) had been unable to attend due to workload
issues arising from the Queensland floods. The Chair appreciated the participation of Mr Phil Bolton (I &
I NSW) in terms of state perspective. The Committee’s work was also assisted by the participation of
industry observers Mr Boxsell, Mr Maoirana and Mr Whan.
Mr Nagle, on behalf of the MAC, noted that Ms Trysh Stone (AFMA Senior Manager) would soon be
leaving AFMA to take up a senior post with DAFF involving the Rural Communities Network Scheme and
climate change policy. Mr Nagle acknowledged Ms Stone’s contribution to Australia’s tuna fisheries over
the last 5 years and service to a range of Commonwealth fisheries in her career with AFS and AFMA.
MAC members and observers joined Mr Nagle in wishing Ms Stone well in her new role.
TACC recommendations for the ETBF
The MAC reviewed its recommendations from its October 2010 meeting with regard to:
 Outcomes of the eighth session of Western Central Pacific Fisheries Commission (WCPFC) in
December 2010.
 CSIRO’s review of the interaction between harvest strategy implementation, RBCCs and
conservation measures of the WCPFC in advising and deciding on “starting TACCs” for the fishery.
 Commercial catches outside the ETBF noting that WCPFC Conservation Measures (including catch
limits) would also apply to state managed commercial fisheries with a bycatch of tuna and billfish.
 Species specific ‘overcatch’ and ‘undercatch’ levels.
The Committee noted that the transition from input controls to ITQs was a significant change and
accepted industry advice that the initial TACC setting process needed to take into account the financial
capacity of the active operators to enter the quota market to secure their current fishing plans. The
MAC acknowledged that industry would adjust their holdings and operations over time but were
currently faced with very tight margins given the strong Australian dollar and high management costs.
The MAC (with one exception) expressed confidence in the operation of the harvest strategies once
things settled down under quota. The MAC identified a need for further investigation of how the
operation of the harvest strategy could be improved in the situation where catch remained well below
the TACC. The Committee recognised that the selection of the starting TACCs was a difficult task and
was subject to disagreement about the suitability of the criteria used to generate the initial
Recommended Biological Catches (RBCCs)1.
The consideration of TACCs for the five quota species revealed common issues as well as species specific
considerations.
1
Tropical Tuna RAG recommended (not unanimously) that the criteria period used to determine the starting RBCC commence at
the time Catch Disposal Records (CDRs) were implemented (2006). The period was 2006 to 2009.
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Common issues
Uncertainty about where the stock in the Area of Influence was sitting (biologically)
The Committee acknowledged that the absence of accepted stock assessment models had required the
development of harvest strategies based on empirical indicators. As noted there was confidence in the
use of CPUE and size composition data to monitor stock health over time but the flipside was that not
much could be inferred about where the stock was at with respect to BMEY. The MAC had the least
trouble agreeing a TACC for Broadbill Swordfish largely because there was greater certainty about its
stock status following work by CSIRO and a provisional stock assessment. Conversely the deliberations
over a starting TACC for Striped Marlin were exacerbated by the lack of certainty about its stock status.
WCPFC obligations
The MAC noted that the ETBF (like other international fisheries) had special status under the
Commonwealth Harvest Strategy Policy. Where the relevant RFMO has a functioning, scientifically
credible decision making process in place to limit effort/catches, the ‘whole of Government position’ will
be to support the outcomes of that process. The MAC recognised that the Australian Government had
committed to set future TACCs in accordance with Conservation Measures even if these were more
conservative than the domestic RBCCs. Members noted that there were no new binding measures as a
result of the December 2010 Commission meeting but the Australian delegation anticipated there would
be a strong emphasis on measures for Bigeye Tuna and Yellowfin Tuna in 2011.
The MAC’s TACC recommendations for Bigeye Tuna and Yellowfin Tuna were consistent with WCPFC
specific catch limits (not binding).
Trading outlook
The MAC noted that a large proportion of the quota would go to inactive concessions including a fair
proportion of small holdings to holders of minor line permits. Industry advised that most operators
realised they would have to enter the market to secure Striped Marlin quota to cover bycatch of that
species at the levels of TACCs previously recommended and a significant number would have to do the
same for Broadbill Swordfish quota to maintain their fishing plans. Industry members envisaged some
trouble in the market for Striped Marlin even at the recommended TACC.
The MAC recalled that the RAG had settled on the period following the implementation of Catch Disposal
Records (CDRs) to determine average annual catches which would inform the initial RBCC settings.
Industry however considered that, unless sound biological reasons existed, setting initial TACCs around
the average catch level from years which coincided with a reduction in fleet size arising from the recent
structural adjustment could be counter-productive and would introduce an unnecessary stimulus for
quota trading in difficult economic circumstances.
The AFMA Senior Manager noted that AFMA’s experience was that it took some years before quota
trading operated smoothly in fisheries after the inception of ITQs. An industry invited participant
emphasised that industry had been through a lot of changes in a short time and needed a bit of ‘wiggle
room’ while they got accustomed to quota management.
Research quota
The MAC reviewed the likelihood of the research projects underway (or approved) needing to cover any
mortalities in the course of their fieldwork with quota. The Committee knew of no pressing need for
research quota and were comfortable with advice from the scientific member that any contingencies in
the near future could be managed through commercial arrangements with quota holders.
Recommendation
That AFMA set research quota at zero for all five quota species for 2011/12 fishing season.
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TACC Recommendations (summary of recommendations provide in Table 1)
Broadbill Swordfish
The MAC noted there was more certainty about mixing for Broadbill Swordfish than for the tunas.
Members also recalled that assessments had shown evidence of overfishing of swordfish in the ETBF and
noted that the implementation of management measures had led to a subsequent improvement in the
stock. Members noted that trends from empirical data were generally consistent with model projections
and industry observations. The MAC was confident that 1,550 tonnes (t) (whole weight) was a robust
starting point for a commercial TACC.
The MAC reaffirmed their previous TACC recommendation of 1,550 t (whole weight) and noted that this
season’s landings (CDR data) would be converted to whole weight using the existing conversion ratio
(1.25 head and gutted2). The MAC identified a need to implement more accurate conversion ratios in
season 2012/13 and agreed to oversee this transition in the lead-up to next season.
The MAC supported undercatch and overcatch levels of 10% for Broadbill Swordfish.
The MAC noted that the recommended TACC was well under the WCPFC catch limit for swordfish in
waters south of latitude 20o south so there was no need to reduce the TACC to provide a buffer for state
catches.
Bigeye Tuna
The MAC recognised that the previous recommendation of a 2,000 t TACC for Bigeye Tuna caused some
consternation, as unlike the other species, catches had not approached the recommended TACC (catches
had not exceeded 1,500 t).
The AFMA Senior Manager noted that Australia was limited to 2,000 t under a WCPC Conservation
Measure and given Australia’s commitment to abide by conservation measures was comfortable with
recommending a TACC of this magnitude. The MAC noted that Australia would implement a national
catch level for Bigeye Tuna consistent with any future Conservation measures adopted by the WCPFC.
The Conservation member considered that the 2,000 t cap was more of an exemption threshold and that
the intent of the measure was to encourage states to reduce catches to their average annual catch (2001
to 2004). Given recent trends in the assessments confirming concern over Bigeye Tuna the Conservation
member reserved his support for a TACC based on average catches (at a level near the RBCC – 734 t).
The Scientific member supported a recommendation around a 2,000 t TACC given the policy settings but
strongly recommended that the MAC watch the situation closely as there was a certain inertia in the
Harvest Strategy (due to the 10% limit in TAC change) if it was coupled with an initial TACC that was set
too high. The member indicated that he would be more comfortable with the higher TACCs if the MAC
agreed that, in the event of consistent negative signals from the harvest strategy for Bigeye Tuna, then
any reductions would be taken from the realised catch, rather than the TACC.
The MAC noted that the current 2,000 t cap applied to all domestic commercial landings of Bigeye Tuna
by Australian vessels in the Convention Area. The AFMA Senior Manager advised that the Tuna Section
had only recently requested tuna catch data from Tasmania, New South Wales and Queensland to
ascertain the level of state catches. Noting flood delays had affected Queensland DEEDI’s ability to
respond the MAC agreed to reduce its TACC recommendation for Bigeye Tuna by 2.5%, which equated to
1,950 t. The MAC committed to review this percentage after analysing state catch data and before the
2012/13 season.
The MAC (with the exception of the Conservation member) endorsed a TACC of 1,950 t for Bigeye Tuna.
The MAC noted that catches were unlikely to approach the TACC and agreed that no undercatch and
overcatch provisions were needed for the 2011/12 season.
2
Head and gutted is the most common treatment, ratios exist for other processing styles
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Albacore Tuna
The MAC noted catches of Albacore by the Japanese fleet and domestic fleet had reached the level of
the recommended TACC and recent CPUE trends were positive. The MAC was comfortable with a 3,000 t
TACC noting it gave industry some room to move but was sufficiently close to recent average catches
that the harvest strategy should pick up any impacts in size composition data and CPUE.
The MAC noted that Japanese catches under access arrangements only referred to retained catch and
that observer data indicated Albacore were often high graded to leave freezer room for more valuable
tunas.
The Committee noted that there were no WCPFC limits in force for Albacore. The MAC noted that
Albacore catches were unlikely to approach the TACC and agreed that no undercatch and overcatch
provisions were needed for the 2011/12 season.
Yellowfin Tuna
The MAC noted that Australia was limited to 2,656 t under a WCPC Conservation Measure although this
only applied to longline caught fish. The MAC recognised this figure was derived from Australia’s
average catch between 2001 and 2004 and was relatively comfortable recommending a TACC around
this level. The Recreational invited observer noted that the recreational and charter sectors remained
concerned about the risk of local depletion arising from TACCs above the RBCCs but were prepared to
support the TACC more broadly.
The MAC agreed to reduce its TACC recommendation for Yellowfin Tuna by 2.5% to 2,590 t to ensure
that a formal allowance for state commercial catches existed within the WCPFC cap on Yellowfin Tuna.
The MAC noted that the state commercial catch of Yellowfin Tuna (while restrained by OCS agreed trip
limits) was likely to be more significant than Bigeye Tuna and committed to review this percentage after
analysing state catch data before the 2012/13 season. Mr Bolton (I&I NSW) advised that Fisheries was
currently compiling the catch data and expected most of the tuna catch to come from the Ocean Trap
and Line Sector which operated out to 80 nautical miles.
The MAC noted that catches of Yellowfin Tuna were unlikely to approach the TACC and agreed that no
undercatch and overcatch provisions were needed for the 2011/12 season.
Striped Marlin
The Committee noted that only one preliminary stock assessment had been undertaken on Striped
Marlin in the southwest Pacific which indicated that it had been fished down by the Japanese fleet in the
1970s and 1980s and had not rebuilt significantly since then.
The MAC expressed general disappointment that recent research proposals for an updated stock
assessment had not been supported as the lack of certainty about where the stock was compared to the
Harvest Strategy reference points had confounded the selection of a suitable starting TACC.
The absence of an agreed resource sharing arrangement also made the TACC setting discussion more
difficult. Members noted that currently this was the only species where the recreational catch/mortality
is at a level comparable to the commercial take. The setting of a TACC near the RBCC was seen by the
industry as imposing the burden of precaution on the commercial sector whereas a TACC substantially
above the RBCC was seen by the recreational sector as diminishing their access right and detrimental to
reasonable strike rates.
The Scientific member confirmed that the recreational catches are taken into account in the HS
implicitly. Given the highly migratory nature of the target species and the large overlap in the
commercial and recreational fisheries, it is reasonable to expect that the impacts of the recreational
fishery will be reflected in the commercial CPUE and size data used as inputs into the HS. Hence the
RBCCs reflect the overall impact of all sources of mortality.
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The industry members and observers reiterated concerns that even at with a 400 t TACC they foresaw
Striped Marlin becoming the ‘Achilles heel’ in the context of a multi-species fishery. Their main concern
was that as quota was used up and trading ground to a halt that it had the potential to drive
management responses which could impede operations for more abundant species. Industry members
and observers regarded AFMA’s commitment to live and vigorous release as helpful.
The Committee spent some time balancing their TACC recommendation with the level of under and
overcatch percentages. The MAC recognised the flexibility ‘overs and unders’ provided on an individual
operator basis and considered these allowances to be particularly valuable with regard to Striped Marlin
whose catchability was characterised by significant interannual variability.
There was some reluctance from AFMA and the recreational participants to endorse a 10% level at 400t
with suggestions that 5% was more appropriate at TACCs above the RBCC. An industry invited
participant observed that AFMA’s cost effective management objective would be best served by a 10%
level as it was somewhat questionable if the benefit of a 5% allowance justified the work needed to
administer these mechanisms.
The scientific member indicated he was more comfortable with a realistic TACC and the flexibility
provided by over and undercatch which reduced the incentive to discard (particularly dead fish) as it was
very important that data on what was being killed was reported accurately.
The MAC unanimously supported an adjusted TACC of 390 t with a 10% over and undercatch for
2011/12. The MAC noted that no discount was needed for state commercial landings as there was
presently no WCPFC limit in place for Striped Marlin in the south west Pacific.
Table 1. Summary TACC Recommendations for 2011/12
Over and under catch
percentage %
0
Species
Albacore Tuna
TACC
3,000
Bigeye Tuna
1,950
0
50
0
390
0
0
10
Broadbill Swordfish
1,550
0
0
10
Yellowfin Tuna
2,590
0
66
0
Striped Marlin
1
1
Tonnes (whole weight)
Research TACC Allowance State catch
0
0
a conversion ratio of 1.25 applies to swordfish for this season.
Strategic recommendation to Tropical Tuna RAG
That Tropical Tuna RAG investigate the operation of the harvest strategies for those species where
catches remain significantly below the TACCs in the short to medium term.
Quota reconciliation arrangements
The MAC noted AFMA’s view that regular reconciliations assisted the operation of the quota market.
The Committee considered a number of options:

by the 15th day of the following month (somewhat like a credit card); or

by 14 days from the date of landing (consistent with SBT).
The MAC noted that some vessels which undertook longer trips in the fishery and considered a longer
period linked to the unload date would be more desirable. Industry members also considered that
owner operators would find it easier fulfil their obligations if more time was available. The MAC
supported a 28 day reconciliation period noting that it was consistent with a number of other
Commonwealth fisheries.
Recommendation
That AFMA implement a 28 day period from the date of unload for quota reconciliation in the ETBF.
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SFR conditions
The MAC noted that AFMA would shortly seek the MAC’s out of session feedback on draft SFR conditions
which will largely rollover existing conditions on current entitlements (seabird mitigation, SBT and NBT
obligations etc).
Action - AFMA to circulate draft SFR conditions to TTMAC.
Advice on Capital Gains Tax (CGT)
The MAC welcomed confirmation from the Senior Manager to secure government funds (capped) to
obtain independent advice on the CGT implications of the change in entitlements from permits to longline
SFRs and then to quota SFRs for the five species. The MAC recognised that operators were uncertain
about the tax implications they might face as a result of having to adjust their holdings to suit their
operations and circumstances. Members realised that this advice would need to be generic in nature and
agreed that concession holders should still seek their own independent advice on taxation matters.
Action - Industry Liaison Officer to procure independent advice on CGT in relation to the implementation
of ITQ SFRs in the ETBF (in consultation with AFMA).
Strategic Assessment
The MAC reviewed the draft conditions of the Wildlife Trade Operation (WTO) for the ETBF which is
expected to provide export approval while a new strategic assessment is undertaken to take into account
the move to quota management.
The Committee provide feedback on the following conditions:
Condition 4
Balance of Electronic monitoring and observers
AFMA needs to clarify its program for cameras and the apparent requirements to place observers on
boats given industry understanding that fitting of cameras removed the need for observers except for
‘special projects’ i.e. tagging.
Condition 5
Implement measures to ensure take of shark is sustainable in the ETBF
The MAC supported AFMA’s position that the Ecological Risk Assessment (ERA) and Management (ERM)
be formally recognised under this condition. The Conservation member noted that SEWPaC and AFMA
needed to ensure this condition was responsive to the WCPFC Shark Assessment and Research Program
now being undertaken by Dr Shelley Clarke.
Recommendation 4
Improving information collection from the recreational and charter sectors
The MAC agreed that this recommendation, which broadly applies to quota species needed to focus on
those species where recreational catches were significant (Striped Marlin and Yellowfin Tuna). The MAC
including recreational participants emphasised that some balance about the level of precision was needed
particularly for species like Swordfish and Bigeye Tuna where the recreational catch was very small. The
MAC agreed that resources would be better directed at Striped Marlin, than for example on Albacore, as a
better understanding of the recreational impacts on Striped Marlin would assist both assessment work
and management responses.
Next meeting
The MAC agreed to consider the timing of its next meeting out of session.
Mr Bill Nagle
Tropical Tuna MAC Chair
30 January 2011
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Attendance
Members
Bill Nagle MAC Chair
Campbell Davies (scientific member)
Geoff Binns (industry member)
Peter Trott (conservation member)
Gary Heilmann (industry member)
Cathal Farrell (industry invited participant)
Paul Williams (industry member)
Erica Starling (industry invited participant)
Terry Romaro (industry member)
Len Olyott (recreational invited participant)
Observers
Trysh Stone (AFMA Senior Manager)
Phil Bolton (I & I NSW)
Darci Wallis (AFMA Manager ETBF and WTBF)
Jason Boxsell (industry)
Grahame A Williams (recreational)
Angelo Maoirana (industry)
Anthony de Fries (acting executive officer)
Adam Whan (industry)
Apologies
Bill Edwards (recreational and charter member)
Brigid Kerrigan (state government invited participant)
Brian Jeffriess (industry invited participant)
Trent Timmiss (AFMA member)
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