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An Ecological Assessment ofQueensland’s East Coast Tropical

Rock Lobster FisheryA report to the Australian Government Department of Environment and Heritage

on the ecologically sustainable management of a single-species dive fishery

Collated by Joanne Atfield

With contributions fromClive Turnbull, Phil Gaffney, Malcolm Dunning, Anna Weis, Clare Bullock,Shannon Ryan, and Kadesh Clarke - Queensland Department of Primary

Industries and Fisheries;Joanne Fisher and Jim Prescott – Australian Fisheries Management

Authority;and Darren Dennis and Tim Skewes – CSIRO

June 2004

Ecological Assessment of Queensland’sEast Coast Tropical Rock Lobster Fishery

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Table of Contents

TABLE OF CONTENTS................................................................................................1

1. DESCRIPTION OF THE FISHERY .........................................................................3

MANAGEMENT AGENCIES ................................................................................................3SPECIES INFORMATION.....................................................................................................3LIFE CYCLE AND BIOLOGY OF THE TROPICAL ROCK LOBSTER..........................................4STOCKS AND AREAS OF FISHING .......................................................................................5LOCATION AND EXTENT OF THE FISHERY .........................................................................5FISHING METHODS AND APPARATUS .................................................................................7HISTORY OF THE FISHERY ................................................................................................8HISTORIC AND CURRENT FISHING EFFORT........................................................................9

2. THE ENVIRONMENT LIKELY TO BE AFFECTED BY THE FISHERY......... 11

3. MANAGEMENT ARRANGEMENTS FOR THE FISHERY................................ 12

BASIS FOR CURRENT MANAGEMENT ARRANGEMENTS..................................................... 12CURRENT MANAGEMENT ARRANGEMENTS ..................................................................... 12PROPOSED MANAGEMENT ARRANGEMENTS.................................................................... 15RELATED LEGISLATION IMPACTING ON THE ECTRLF .................................................. 15

4. ENVIRONMENTAL ASSESSMENT OF THE FISHERY .................................... 17

PRINCIPLE 1. .................................................................................................................. 17OBJECTIVE 1. FISHERY CATCH LEVELS MAINTAIN ECOLOGICALLY VIABLE STOCK LEVELS

WITHIN AN ACCEPTABLE LEVEL OF PROBABILITY............................................................... 17Guideline 1.1.1 ............................................................................................................... 17Guideline 1.1.2 ............................................................................................................... 20Guideline 1.1.3 ............................................................................................................... 21Guideline 1.1.5 ............................................................................................................... 24Guideline 1.1.6 ............................................................................................................... 24Guideline 1.1.7 ............................................................................................................... 25Guideline 1.1.8 ............................................................................................................... 26Guideline 1.1.9 ............................................................................................................... 27OBJECTIVE 2. WHERE THE FISHED STOCK(S) ARE BELOW A DEFINED REFERENCE POINT, THE

FISHERY WILL BE MANAGED TO PROMOTE RECOVERY TO ECOLOGICALLY VIABLE STOCK

LEVELS WITHIN NOMINATED TIMEFRAMES......................................................................... 27Guideline 1.2.1 ............................................................................................................... 27Guideline 1.2.2 ............................................................................................................... 28PRINCIPLE 2. .................................................................................................................. 28


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FISHING OPERATIONS SHOULD BE MANAGED TO MINIMISE THEIR IMPACT ON THE

STRUCTURE, PRODUCTIVITY, FUNCTION AND BIOLOGICAL DIVERSITY OF THE

ECOSYSTEM. ................................................................................................................... 28OBJECTIVE 1. THE FISHERY DOES NOT THREATEN BYCATCH SPECIES.................................. 28Guideline 2.1.1 ............................................................................................................... 28Guideline 2.1.2 ............................................................................................................... 29Guideline 2.1.3 ............................................................................................................... 29Guideline 2.1.4 ............................................................................................................... 29Guideline 2.1.5 ............................................................................................................... 29Guideline 2.1.6 ............................................................................................................... 29OBJECTIVE 2. THE FISHERY AVOIDS MORTALITY/INJURY TO ENDANGERED, THREATENED, OR

PROTECTED SPECIES. THE FISHERY AVOIDS/MINIMISES IMPACTS TO THREATENED

ECOLOGICAL COMMUNITIES.............................................................................................. 30Guideline 2.2.1 ............................................................................................................... 30Guideline 2.2.2 ............................................................................................................... 30Guideline 2.2.3 ............................................................................................................... 30Guideline 2.2.4 ............................................................................................................... 31Guideline 2.2.5 ............................................................................................................... 31Guideline 2.2.6 ............................................................................................................... 31OBJECTIVE 3. THE FISHERY IS CONDUCTED IN A MANNER THAT MINIMISES THE IMPACT OF

FISHING ON THE ECOSYSTEM GENERALLY.......................................................................... 32Guideline 2.3.1 ............................................................................................................... 32Guideline 2.3.2 ............................................................................................................... 32Guideline 2.3.3 ............................................................................................................... 33Guideline 2.3.4 ............................................................................................................... 33Guideline 2.3.5 ............................................................................................................... 33

5. INFORMATION SOURCES ................................................................................... 34

APPENDIX 1. CURRENT JOINT FRDC CSIRO QDPI&F RESEARCHPROJECT 2002/008– EXCERPTS FROM THE PROJECT AGREEMENT JULY2002. ............................................................................................................ 35


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1. Description of the fishery

Management Agencies

Under Offshore Constitutional Settlement (OCS) arrangements between theCommonwealth and Queensland governments, management of tropical spiny rock lobsterspecies throughout most of the Australian Fishing Zone adjacent to the east coast ofQueensland falls under the jurisdiction of the Queensland Fisheries Act 1994 andFisheries Regulations 1995.

Harvest of tropical spiny rock lobster species on the east coast of Queensland south oflatitude 10∞ 41’ south, and east of longitude 142∞ 31’ 39” east is managed by the

Queensland Department of Primary Industries and Fisheries (QDPI&F). Tropical spinyrock lobster species in Torres Strait Protected Zone waters are managed under thejurisdiction of the Torres Strait Protected Zone Joint Authority and under the Torres StraitFisheries Act 1984 (Commonwealth). Tropical spiny rock lobster stocks occurring in theGulf of Carpentaria and adjoining waterways between the 25n mile line and the shoresouth of latitude 10∞ 48’ south are managed jointly by the Commonwealth and Queensland

governments through the Queensland Fisheries Joint Authority (QFJA) under Queenslandlaw.

Species Information

Most rock lobster species that are found in Queensland waters are from the genusPanulirus (referred to as “Tropical Rock Lobsters”), and one species of Jasus (Table 1). Inthe East Coast Tropical Rock Lobster Fishery (ECTRLF), almost the entire catch is of theornate rock lobster, Panulirus ornatus.

The live export product is made up only of P. ornatus, which is targeted from inshore andmid-shelf reef systems. Anecdotal evidence from commercial processors identifies threeother species that can be captured as by-product to the P. ornatus fishery that is processedas frozen tails product. These include P. versicolor, which comprises less than 1% of thetotal catch, and P. longipes fermorostringa and P. penicillatus that are caught veryinfrequently and make up less than 1% of the product combined (M.G. Kailis, pers. comm.2003). These three species are mostly found in deeper waters of the outer-shelf reefsystems and are not in commercial abundance in the inshore and mid-shelf P. ornatushabitats. These species are therefore regarded as a minor byproduct to the P. ornatusfishery.


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Table 1. Rock lobster species of the family Palinuridae that inhabit Queensland waters.

Species Name Common Names

EstimatedProduct

Proportion ofECTRLF

Panulirus ornatusß Tropical spiny rock lobsterß Ornate spiny lobster

>98%

Panulirus versicolorß Green crayß Painted spiny lobsterß Painted coral lobster

<1%

Panulirus longipesfemorostringa

ß Coral crayfishß Painted crayfishß White whiskered rock lobsterß Long-legged spiny lobsterß Blue spot rock lobster

<0.5%

Panulirus penicillatusß Battle crayß Pronghorn spiny lobsterß Surf Lobsterß Double spined lobster

<0.5%

Panulirus homarushomarus ß Scalloped spiny lobster Rare

Panulirus polyphagusß Mud spiny lobsterß Long whiskered rock lobster Rare

Jasus verreauxiß Eastern rock lobster Does not occur

in ECTRLF

Life cycle and biology of the tropical rock lobster

The life cycle of the Tropical Rock Lobster is similar to many other Palinurids. Afterhatching the larvae go through a pelagic phase and pass through 11 instars, during whichtime the larvae are known as a phyllosoma. The final larval stage that bridges between thelobster’s pelagic and benthic existence is the puerulus. At this stage the larvae is an activeswimmer and probably actively seeks out suitable benthic habitat on which to settle.

The spawning season is between November and April (MacFarlane and Moore, 1986; Bellet al, 1987) with a larval life of approximately 6 months (Dennis et al, 1997). The puerulisettle during the winter period into holes or crevices, partially covered by seagrass ormacroalgae, in a limestone substratum (Dennis et al, 1997).

Following settlement the juveniles grow rapidly and are one of the fastest growing lobstersknown (Dennis et al, 1997). Near the end of their second year of benthic life manylobsters in the Torres Strait undergo an extensive breeding migration, which pass throughthe Great North East Channel and into the Gulf of Papua, in Papua New Guinea (Mooreand MacFarlane, 1984). Some of the breeding lobsters migrate as far east as Yule Island inthe eastern part of the Gulf of Papua. Research identifies that few if any lobsters surviveafter a short fishing season, due to high natural mortality in the vicinity of Yule Island. Of


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the known migration to PNG, there appears to be no return migration to the Torres Straitfrom breeding grounds in the Gulf of Papua. This is consistent with the catastrophicmortality documented among lobsters that migrated as far as Yule Island (MacFarlane andMoore, 1986).

Large aggregations have been observed on the east coast of Queensland, however there isno evidence to suggest that these aggregations are active migrations that join in the largermigration to Yule Island. Tagging studies have found no movements of lobsters from theQueensland east coast to the Torres Strait, but have found movements in south-eastdirections with suggestion that mature rock lobsters on the east coast can move as singleindividuals or perhaps as small groups (Bell et al, 1987). Breeding females have beenfound in the eastern reefs of the Torres Strait and outside of the Great Barrier Reef todepths in excess of 100 metres. The presence of much older P. ornatus populations(QDPI&F, unpublished) on the east coast suggests that there is no catastrophic mortalityas is documented among Torres Strait lobsters that migrated as far northeast as Yule Islandin the Gulf of Papua.

Stocks and areas of fishing

The P. ornatus fishery in Queensland waters is part of a larger stock that encompasses theTorres Strait and PNG. From a population dynamics perspective, the stock probablycomprises all lobsters north of around 15 degrees South along the Queensland coast, inTorres Strait and the south eastern coast of PNG as any breeding within this region couldpotentially supply recruits to all areas within the region due to the clockwise gyre in thenorth-west Coral Sea (This is further detailed under Guideline 1.1.3).

A soon to be completed FRDC-funded CSIRO/QDPI&F research project (2002/008)entitled “Biology, larval transport modelling and commercial logbook data analysis tosupport management of the NE Queensland Rock Lobster Panulirus ornatus Fishery”(Appendix 1) is increasing our understanding of the larval supply between the threefisheries by modelling ocean circulation patterns and making predictions on the likelytrajectories of larvae released from known breeding locations. This will assist todetermine source and sink populations within the larger stock.

Location and extent of the fishery

A full description of the area of the fishery (ie. the Queensland jurisdiction) is shown inFigure 1 The commercial fishery area for the east coast of Queensland comprises all tidalwaters east of longitude 142∞ 31’ 49” east, south of latitude 10∞ 41’ south and north of

latitude 14∞ south. The commercial fishery area is also made up of tidal waters of the Gulf

of Carpentaria and adjoining waterways, between the 25 nautical mile line and the shore,south of latitude 10∞ 48’ south. Essentially, the commercial fishery operates from Cape

York to Cape Melville, and the eastern side of the Gulf of Carpentaria. The Gulf ofCarpentaria fishery is limited to a small area in the northeast due to limited reef habitat,and therefore only contributes a very minor component of the entire fishery harvest. Less


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than 5 days of effort were reported from the Gulf in 2002 with catches of only a fewkilograms. This component of the Queensland rock lobster fishery is not consideredfurther in this report.

Figure 1. Map showing the area of Queensland’s East Coast Tropical Rock Lobster Fishery(ECTRLF).

The recreational fishery differs from the commercial harvesting in that it operates on theentire east coast of Queensland with a nominal component likely within the Gulf ofCarpentaria section.

Quantifying the area and effort of indigenous fishing is difficult due to the lack of detailedinformation. It is most likely concentrated north of Townsville but could possibly extendas far south as the Queensland / New South Wales border. Indigenous fishers taking rocklobster for ‘customary or traditional purposes’ are permitted to legally fish in all Marine


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Park zones, thereby effectively having access to stocks throughout the entire east coast ofQueensland.

Fishing methods and apparatus

Commercial fishers

Panulirus ornatus rarely enters pots and is therefore collected exclusively by diving. Freediving involves the use of snorkel gear with no breathing apparatus, and is restricted toshallow reef top waters. Surface supplied breathing apparatus (hookah) are commonlyused in the commercial fishery, and allow access to deeper waters on reef edges. The useof hookah equipment became more common than free diving in response to intensifiedcompetition for rock lobsters on reef tops. The use of hookah equipment is now the mostcommon method of diving employed in the ECTRLF, and is used to target P. ornatus inboth reef tops and deeper waters.

Primary boats, less than 20 metres in length, are used to hold daily catches duringextended trips and are used as a base for divers and tenders to return to after a day offishing. Dinghies are approximately 5 m long, with 25-60 hp motors and are usually madeof aluminium or fibreglass. One person handles each dinghy and the other one dives, andoccasionally, a one-person or a three-person team operates the dinghy.

The method of capture varies between divers, however the collection of lobster for frozentails is usually by a rubber powered hand spear used to penetrate the animals’ carapace.The lobster is then placed in a catch bag and placed on ice in the dinghy to be furtherprocessed. The tails are frozen individually on board the freezer boat. The use of scoopnets and herding rods was gazetted in February 2003.

As a result of market demand and better prices received by divers, live collection oflobster is now the most common method, with divers taking the animals by gloved hand,by the use of a noose placed over the tail, or with the use of meshed bags placed overescape holes in the reef structure. Another method used to take live lobster is by nightpoling (lamp fishing) after dark, using a long pole with a small net or snare placed over alobster found out in the open.

Recreational and indigenous fisheries

Other non-commercial collectors, including recreational and indigenous fishers, free diveusing a mask and snorkel, a glove and/or a hand spear to catch tropical spiny rock lobsteralong the east coast of Queensland. Recreational fishers are permitted to use a rubberpowered hand spear or spear gun when taking rock lobster but are not permitted to usehookah or SCUBA. Indigenous fishers collecting lobsters for subsistence purposestypically fish at night from outboard-powered dinghies. Restrictions placed on breathingapparatus limit recreational fishers to relatively shallow waters (less than 10 m deep).


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History of the fishery

The commercial catch of tropical spiny rock lobster along the east coast of Queensland hasbeen relatively small due to the small total area fished, limited area of suitable shallowwater habitat and low productivity of the tropical oceans. However, the high food valueand marketability of lobsters, combined with their simple harvest technology and thedurability of product afforded by their exoskeleton make them an attractive resource notonly for commercial fishers, but also for recreational and traditional fishers (Pitcher,1993).

It is difficult to estimate when the traditional or indigenous fishery for rock lobster beganin Queensland, however, it is very likely that traditional inhabitants have fished for themfor centuries.

The first commercial attempt to establish a fishery was made in 1945 by an AustralianArmy fishing unit, in efforts to supply food to the troops during World War II. Theseunits were spread throughout Australia and Papua New Guinea and employed a variety offishing techniques. It was their view, at the time, that a commercial fishery would havelittle chance of success if it were confined to the waters of the Torres Strait. Between1957 and 1960 a seafood processor from Tweed Heads, in association with the owners of a22 metre wooden fishing vessel, worked the waters of the Torres Strait and Cape York.The venture proved to be short lived, although it did export at least one shipment oflobsters weighing approximately 900kgs in 1959. Soon after this, in 1960, a father andson team attempted to harvest lobsters, operating between Mackay and Cape York, andthis was to prove the successful pilot to the now existing fishery (Phillips et al, 1983).

A number of unsuccessful attempts to harvest lobster in Torres Strait were made betweenthe mid-1950s and late 1960s, primarily due to the lack of efficient handling andrefrigeration facilities in the region (Channells et al, 1987). The taking of tropical spinyrock lobsters by the Australian and Papua New Guinean prawn trawl fisheries occurredfrom 1973 onwards when prices on the established North American markets made it alucrative alternative catch. Combined Australian and Papua New Guinean trawl catchesranged from 210-228 tonnes annually (Channells et al, 1987). A total ban on trawling forrock lobsters was legislated in 1984.

The east coast commercial fishery has been operating since the late 1950s. The catch wasoriginally comprised entirely of frozen tails exported to the United States. In 1993 thefishery changed significantly when a live market to Hong Kong, mainland China andTaiwan was established. Prices reached as high as $50 AUS for lobsters weighing 1kg-2kg. These lobsters, often referred to as the ‘golden size’ command higher prices than anyother Australian lobster due to their colour and flesh texture which, when served raw assashimi, is firm.

As a dive fishery there are natural differences in the level of skill and effort betweenexperienced divers and more recent entrants. Today, most of the operators fishing the eastcoast also have a Torres Strait endorsement permitting them to harvest stocks in the TorresStrait, however, for management purposes these are treated as two separate fisheries.


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Management objectives in the Torres Strait fishery have a greater emphasis on supportingtraditional fishing and on allocation issues with Papua New Guinea participants in thefishery.

Historic and current fishing effort

Legislation implemented in December 1996 aimed to curb the expansion of fishing effortin the tropical rock lobster fishery. No new tender commercial fishing boat licences wereissued into the ECTRLF from December 1996. The number of primary and tender vessellicences have since decreased from 30 primary and 103 tender licences in 1996 to 28primary and 93 tender licences in 2002 (Table 2).

Table 2. Number of primary and tender vessel endorsements in the ECTRLF between 1996and 2002.

YEAR# Primary

vessellicences

# Tendervessel

endorsements

# Primaryvesselsfished

1996 30 103 131997 30 103 211998 30 104 141999 29 100 232000 28 94 272001 28 84 252002 28 93 172003 28 93 15

Compulsory logbooks have documented catch and effort since 1988. There is no data forcatches prior to 1988, however they are likely to be minor relative to current commercialharvests. The logbook data shows that annual catch and effort increased rapidly from 1994as the live lobster export industry of P. ornatus expanded in the late 1990’s (Figure 2).

Catch and effort peaked in 2001, when recorded catch rates were at their lowest. The 2002Queensland east coast catch and effort was much lower than 2001 due to improved catchrates in Torres Strait and the introduction of a seasonal closure which limited the durationof the season. The 2003 catch and effort was even lower than 2002 due to sustained highercatch rates in Torres Strait and a poor price for live product due to current worldeconomics and the recent SARS epidemic in Asia. Vessels that are dual endorsed to fishboth the Torres Strait and east coast fishery (20 of the current 28) are therefore choosing tofish in the Torres Strait during years of high catch rates in the Torres Strait (such as 2002and 2003).


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0

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Figure 2 Total annual catch and effort

Catch rates in the ECTRLF in 2003 (Figure 3) have increased significantly on 2001/2002levels, and this is supported by anecdotal information from commercial fishers operatingwithin the ECTRLF and QDPI&F observer catch and effort data both from the early partof 2003. However, Torres Strait catch rates were also high and the majority of dualendorsed vessels (20 of the 28 fishing the east coast) operated solely within the TorresStrait at least in the early part of 2003.

0

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Figure 3 Annual Catch Per Unit of Effort in kg per tender day since 1994. Catch rate isbased on non-standardised annual catch and effort.


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2. The environment likely to be affected bythe fishery

The area in which the ECTRLF operates is almost exclusively within the Great BarrierReef World Heritage Area.

The majority of the catch and effort of the fishery occurs within the Great Barrier ReefWorld Heritage Area, which adds additional responsibilities to manage the area in respectto the world heritage values for which it has been listed. A process that has significantinterrelationships with the ECTRLF is the implementation by Great Barrier Reef MarinePark Authority (GBRMPA) of the Representative Areas Program (RAP), a program thathas been developed to protect the biodiversity of the GBR WHA. The RAP hasincorporated significant input from a range of expertise and community based interestgroups. A final zoning plan incorporating significant increases in highly protected areas(no fishing zones) will be implemented from 1 July 2004.

The major fishing operation that occurs in this fishery is based on hand-collection or useof spear by divers using free-diving or hookah methods on inshore and mid-shelf coralreef systems. These methods produce no bycatch to the capture of tropical rock lobsters.These methods are very unlikely to endanger listed endangered, threatened or protectedspecies. No interaction with endangered, threatened or protected species have beenreported within the fishery, and therefore no formal assessment has been conducted. Thepotential interaction of the ECTRLF with species of conservation interest is documentedin Criteria 2.2.1 and 2.2.5.

There are no threatened ecological communities (current, past or proposed) that areaffected by the rock lobster fishery (as addressed in Criteria 2.2.5). Beyond the removal ofrock lobster species from reef ecosystems, there is no evidence to suggest that there is animpact on other components of the benthic or pelagic communities in the area that thefishery operates.


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3. Management arrangements for the fishery

Basis for current management arrangements

Current Queensland east coast management arrangements were introduced primarily tocap commercial fishing effort in specified areas of the tropical spiny rock lobster fishery.Input controls have been traditionally used to manage rock lobster stocks. Limited entryinto the fishery allows a set number of fishers with a limited number of vessels to exploitthe stocks. The number of authorities or endorsements issued is set at a level that iscalculated to be capable of imposing some predetermined level of fishing mortality.Vessel size restrictions are in place to limit the amount of catch that can be held on boardat any one time (King, 1995). The policy of the QFS preventing any new tendercommercial fishing boat licences being issued was adopted in 1996 as it was consideredthe number of licensed operators may be in excess of the number required to harvest theknown resources in a sustainable manner.

Indigenous or traditional fishers are permitted to take lobster along the entire east coast ofQueensland, while non-indigenous recreational fishers can legally fish the entire eastcoast, except Marine Parks National Park and Preservation Zones. Area closures aretherefore not as relevant to these user groups, however they are particularly relevant to thecommercial tropical spiny rock lobster fishery. With the east coast sector of thecommercial tropical rock lobster fishery confined to the waters between Cape York andPrincess Charlotte Bay, all waters on the east coast beyond this are effectively closedareas.

The fishery operates in an area from Cape York to Cape Melville. This boundary wasadopted after GBRMP boundaries were declared in the 1970s, due to the naturallydecreasing abundance and density of P. ornatus towards the sub-tropical waters of centraland south east Queensland and to minimise potential conflict between different usergroups, particularly recreational and commercial lobster fishers. Furthermore, areaclosures restrict commercial effort to specific manageable areas and decrease the capacityfor further development of the fishery.

Current management arrangements

HarvestMAC is a management advisory committee for Queensland’s harvest fisheries,consisting of representatives from the commercial rock lobster fishing industry, GreatBarrier Reef Marine Park Authority (GBRMPA), Queensland Parks and Wildlife Service(QPWS), Australian Institute of Marine Science (AIMS), Queensland Boating andFisheries Patrol, recreational fishing industry, and other commercial harvest fisheries.HarvestMAC advises QDPI&F on the management of the ECTRLF.


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Currently, there are 28 commercial primary vessels that employ a total of 93 tender boatslicenced to harvest lobster for trade or commerce purposes. On average, most primarycommercial fishing vessels work in tandem with 3-4 tender boats. Many of the primaryboats (20) are also endorsed to operate in the tropical rock lobster fishery within theTorres Strait Protected Zone (TSPZ).

Recreational fishers primarily target P. ornatus, however, other species such as P.longipes, P. versicolor and P. penicillatus are also desirable and taken non-commercially.

Fishing by traditional people can be classified into three categories:

a) Fishing for traditional or customary purposes;b) Commercial fishing; andc) Recreational fishing.

The taking of fish is an important part of indigenous people’s tradition and custom. TheFisheries Act 1994 recognises this. In particular, Section 14 of the Act provides that anaborigine may take, use or keep fisheries resources under Aboriginal traditional orcustomary law and that a Torres Strait Islander may do the same under Island custom.

Management arrangements currently implemented can be divided into these categories:those that apply to all fishers; those that apply to only commercial fishers; and those thatapply only to recreational or traditional fishers.

All Fishers

Harvest of tropical spiny rock lobster is by hand, hand-held non-mechanical implementssuch as rubber powered hand spears and noose rods, or by using mechanical implementssuch as a spear gun. Free diving using a face-mask and snorkel are permitted andcommonly used in shallow waters.

Commercial Fishery

Commercial harvesting of tropical spiny rock lobster is controlled by existing regulatoryrequirements and boat licences carry the symbol ‘R’. Only crayfish or rock lobster may betaken and underwater breathing apparatus (SCUBA and hookah) may be used. A primarycommercial fishing boat may not be more than 20m in length. A tender commercialfishing boat may not be more than 7m in length and must have the fishery symbol on it.Not more than the number of tender commercial fishing boats authorised by the Authorityfor the fishery may be used at a time.

Output controls for the commercial fishery were introduced in December 2002 and includeminimum legal size limits and protection of breeding females (“no-takes”). There are nocatch quotas used in the management of the fishery. There is a suite of input controlsregulating effort in this fishery, including a limited entry system, vessel size restrictions,gear restrictions, closed areas, and a closed season.


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A minimum size limit of 90 mm carapace length (equivalent to 115 mm tail length) wasintroduced to reduce fishing mortality by increasing the size at first harvest. A protectionof reproductive females includes a no take of egg-bearing or mated (tar-spot) females.

A seasonal closure introduced in October 2002 closes the commercial fishery between 1October and 1 February, and aims to reduce fishing mortality especially on reproductivefemales and breeding aggregations. Limited entry restricts the number of primarycommercial fishing boats and tenders that can operate in the fishery, and vessel restrictionslimit the size of the vessel that can be used for commercial harvesting. However, on 17December 1996, QFMA developed a policy to curb the expansion of fishing effort in thetropical spiny rock lobster fishery. The effect of the policy was that no new tendercommercial fishing boat licences are to be issued with the fishery symbol ‘R’.

The area permitted to be worked for commercial purposes is restricted to Queensland tidalwaters north of latitude 14∞ South and east of longitude 142∞ 31’ 49’’ East, essentially, all

tidal waters south of Cape York and north of Cape Melville. The area is also made up oftidal waters of the Gulf of Carpentaria and adjoining waterways, between the 25n mile lineand the shore, south of latitude 10∞ 48’ south. Within the area permitted to be fished,

Marine Parks National Park and Preservation Zones prohibit any form of lobsterharvesting (except for customary or traditional purposes) and public access respectively.

In December 2002, changes to the operation of commercial vessels were introduced intothe ECTRLF. From February 2003, fishing is not permitted from the primary vessel, andonly one diver is permitted to fish at any one time from each tender vessel. It is prohibitedto collect lobsters from the primary vessel at the same time that tender vessels are alsoengaged in fishing.

Gear restrictions are in place which limit the collection of lobsters to either by hand, handspear or spear gun. Pot restrictions are not relevant in this particular lobster fishery, as P.ornatus is not known to enter any form of trap.

In February 2002, the QDPI&F amended its boat replacement policy to include theTropical Rock Lobster Fishery. This policy will generally allow for upgrades to 14 metresin length (LOA) where a boat is less than or equal to that length. Boats greater than 14metres in length (LOA) will generally be able to be replaced only with a boat of the samelength or less. The primary consideration will be that a boat replacement does not lead toan unacceptable increase in fishing effort or capacity.

Recreational fishery

The recreational tropical spiny rock lobster fishery is regulated by output controlsincluding minimum size limits as in the commercial fishery, no take of breeding femalesand bag limits. A bag limit of 3 per person or 6 per vessel exists in Queensland waterswithin the commercial fishery, and of 5 per person or 10 per vessel south of the boundaryof the commercial fishery. Input controls include restrictions on gear, area and seasonalclosures. In common with commercial methods, only use of hand spear, spear gun andhand collection is permitted. All types of underwater breathing apparatus (except snorkel)are prohibited in the taking of tropical spiny rock lobster for recreational purposes.


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Recreational fishers have access to stocks throughout the east coast, except designatedareas prohibiting any form of fishing such as relevant general fisheries closures andMarine Park zones. The same seasonal closure for rock lobsters within the commercialfishery (1 October to 1 February) applies to the recreational take within the same area.There is no recreational seasonal closure outside of the commercial fishery limits.

Indigenous fishery

Aboriginal or Torres Strait islanders can legally access tropical spiny rock lobster stocksin most areas provided they are taken for ‘traditional or customary purposes’. A permit isrequired in some Marine Parks zones and no fishing can be undertaken in PreservationZones. Gear restrictions such as hand spear, spear gun and hand collection applyuniformly to all forms of recreational fishing, traditional or otherwise. All forms ofunderwater breathing apparatus (except snorkel) are also prohibited.

Proposed management arrangements

Proposed management arrangements for the ECTRLF include the introduction of arequirement for recreational fishers and aquarium fish collectors to punch or clip the tailsof rock lobsters that are to be retained. This arrangement aims to reduce black market saleof rock lobsters as it will be an offence for these sectors to be in possession of rocklobsters that are not tail clipped or punched. It will also be an offence for seafoodmarketers (retail or wholesale) to be in possession or offer for sale rock lobsters withpunched or clipped tails.

QDPI&F will advise the Australian Government Department of the Environment andHeritage of this or other amendments made to the Queensland Fisheries Regulation 1995.

Related legislation impacting on the ECTRLF

A number of other Acts, made by the Queensland or Commonwealth governments, impacton the management of tropical rock lobster. For example, if the product is to be exported,the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act)(Commonwealth`) and the Export Inspection Act 1985 (Commonwealth) may apply.

One Act, the Great Barrier Reef Marine Park Act 1975 (Commonwealth), significantlyimpacts on the harvest of tropical rock lobster species. The Act provides for theestablishment, control, care and development of the Great Barrier Reef Marine Park(GBRMP). The framework for planning and management of the multiple-use Marine Parkis principally through zoning plans, which make provisions regarding the purposes forwhich each zone may be used or entered.

The GBRMP extends from latitude 10o41’ in the north (Cape York) to latitude 24o30’ inthe south (Breaksea Spit) and covers waters from the coast east to beyond the outer edgeof the Great Barrier Reef.


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QDPI&F consults regularly with Marine Parks management agencies to ensure thatfisheries and marine park management planning arrangements are complementary.

The Great Barrier Reef Marine Park Act 1975 and Regulations apply to the GBRMP.Under the relevant zoning plans, permits are required for collecting (only allowed incertain zones) while ‘limited collecting’, as defined, is ‘as-of-right’ in particular zoneswith defined bag limits. The Regulations list protected species and define ‘collectable’species that can be taken. Under the revised GBRMP rezoning which comes into placefrom 1 July 2004, 40% of the area currently available to commercial Tropical RockLobster harvest will be closed.

The Marine Parks Act 1982 (Queensland) and Regulations 1990 apply to State MarineParks with provisions complementary to the GBRMP Act. The Act and Regulations dealgenerally with the marine parks while zoning plans determine which activities can occur‘as-of-right’ in particular zones and which activities require permits.

The Environment Protection and Biodiversity Conservation Act 1999 and Regulation 2000(Commonwealth) promotes the conservation of biodiversity by providing strongprotection for listed species and communities in Commonwealth areas, cetaceans inCommonwealth waters and outside Australian waters; protected areas (World Heritageproperties; Ramsar wetlands; Biosphere reserves; Commonwealth reserves; andconservation zones).


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4. Environmental assessment of thefishery

Principle 1.

A fishery must be conducted in a manner that does not lead toover-fishing, or for those stocks that are over-fished, the fisherymust be conducted such that there is a high degree of probabilitythe stock(s) will recover.

Objective 1. Fishery catch levels maintain ecologically viable stocklevels within an acceptable level of probability

Information Requirements

Guideline 1.1.1

ß There is a reliable information collection system;

ß Data collection is based on both fishery-dependent and fishery-independent research and monitoring.

Fishery-dependent data

The ECTRLF is a single species fishery and therefore data collection from the commercialfishery focuses on the ornate tropical rock lobster, Panulirus ornatus. The main source offishery dependent data on the ECTRLF is from compulsory daily logbooks since 1988. Inrecent years processor records have also been collated to validate the logbook data. Inaddition FRDC project 2002/008 has developed and tested protocols for an observerprogram that could be used to validate logbook records and provide additional biologicalinformation. Details of recreational catch, fishing charter catch and traditional take arediscussed under Guideline 1.1.4.

Logbook Data

As many of the fishers that operate in the ECTRLF also operate in the Torres StraitTropical Rock Lobster Fishery (TSTRLF), a common logbook has been used for bothfisheries since the commencement of the compulsory Queensland program in 1988.


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The data on the two fisheries is separated and AFMA (Canberra) maintains a database forthe TSTRLF logbook data while the ECTRLF data is entered into the CFISH databasesmaintained by QFS (Brisbane). The current version of the logsheet used in both fisheriesis the TRLO4 (Figure 4), which provides for better recording of catch and effort data thanthe previous logsheet.

The TRL04 logsheet collects information per tender vessel on the collection method (ie.hookah, free-diving); total daily hours fishing; separate catch totals for live and tailsproduct components; and have also introduced a category for collection of numbers oflobsters captured (voluntary). Although only the daily position of the primary vessel isrecorded on the logsheet and tenders may operate up to 5nautical miles away from theprimary vessel, the data does enable us to map the catch and effort at the 30 and 6 minutegrid levels which is satisfactory for analysis and management purposes. It is not feasible torecord the daily tender fishing positions.

Figure 4. Copy of the AFMA compulsory logbook sheet TRL04 that is currently used byQDPI&F to collect fishery-dependent data from each primary vessel that fishes in the eastcoast TRL fishery.

Recreational logbook systems (RFISH) are designed to collect catch information on morecommonly caught species on larger regional scales. As such, the RFISH logbooks collectonly very small volumes of data for the less commonly captured species such as P.ornatus. There is only a very small amount of P. ornatus catch data stored in the RFISHdatabase and it is not adequate for estimating recreational catches for the species.

Data validation


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The Queensland Rock Lobster Association (QRLA) conducted harvest audits for theECTRLF in 2002 by sourcing product weights from processor facilities for the 2000 to2001 period. The annual product estimates for P. ornatus were within 3% of the harvestestimates conducted by QDPI&F from logbooks for the same period. The logbook recordstherefore appear to be reliable for this 2000/2001 period as the logbook estimate of totalcatch was within a few tonne (less than 3% of the catch) different from the total catchfrom the processor records.

A processor logbook (buyer return) could collect detail of total product going throughvarious processing plants in major centres. It could also collect catch detail such as thebreakdown of the live and frozen tails components of the catch.

As a part of the FRDC-funded project (2002/008), a trial observer program was developedand tested in 2002 and 2003. The trial program was able to test the collection of detailedfishery-dependent data for validation of the commercial logbook data including tendercatch (totals, tails and live weights and numbers, by-product), and effort (number of hoursfished, distance travelled, depth fished, reef locations fished). The program was also ableto collect biological data (size in carapace length, sex, moult and general condition) tosupport management of the single-species fishery.

Reliability and role of the fishery-dependent data

The data assessment being conducted as part of the FRDC project 2002/008, will providean assessment of the reliability of the logbook data and as well as identifying sources anddeveloping options for improving the quality and reliability of the data. Preliminary resultsfor the project indicate that data since 1994 is fairly reliable, hence is a good indicator ofstock abundance and suitable of use in simple stock models. The results of a preliminarystock assessment are covered under Guidelines 1.1.2 and 1.1.5. QDPI&F currently usesthe data to monitor trends in catch and effort in the fishery for management purposes.Harvest MAC which advises QFS is regularly advised on the trends in catch and effort inthe fishery.

Fishery-independent data

All available biological data that has been collected on the ECTRLF since 1980 is beingcollated and reviewed by CSIRO (Cleveland) as a component of the FRDC project2002/008. In 1980, CSIRO and Papua New Guinea Department of Primary Industriescommenced a research program in the Torres Strait and on the north Queensland east coastthat collected size frequency information and released tagged lobsters from most of thefished areas. This research has provided data on population structure, growth, reproductivebiology and migration patterns. The lobster tagging research indicates that east coaststocks do not take part in the migrations known to occur from the reefs of northern TorresStrait, across the Gulf of Papua to the major breeding ground near Yule Island. Researchconducted by CSIRO and anecdotal information from fishers indicates that east coastlobsters migrate into deeper waters on the edge of the barrier reef to spawn instead ofmigrating to Yule Island as do the Torres Strait lobster.


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The data being collated by CSIRO will assist with assessing the efficiency of seasonaland/or area closures for protecting the breeding population. Seasonal length-structure databeing collated will assist in the assessment of the efficiency of minimum size-limits, andthe suitability of possible maximum size limits for the fishery will be assessed from size-fecundity relationships for the species. Historical size-frequency data will be compared tosize-frequency data collected by the QDPI&F observer to identify differences that may bea result of fishing and whether such changes effect the sustainability of the population.

Another component of the FRDC project is to model the ocean circulation patterns in theNW Coral Sea and utilise this data together with results of plankton distribution surveys(1997), to determine likely trajectories of larvae released from known breeding grounds.This will model the fate of larvae released in the east coast fishery and assist to identifysource and sink populations. Results of the current research are not yet finalised, howeverwill be available in late 2004.

Annual Fishery Independent surveys of the type conducted by CSIRO in Torres Strait arenot feasible on the Queensland east coast due the extent of the fishery, greater waterdepths that restrict the use of dive surveys and possibly lower inter-reef lobster stockdensities.

Assessment

Guideline 1.1.2

ß There is a robust assessment of the dynamics and status of thespecies/fishery.

ß The assessment process is periodically reviewed (at least every 3years).

ß The assessment process is capable of detecting reductions in biologicaldiversity &/or reproductive capacity.

FRDC project 2002/008 will provide the first assessment of the status of TRL stockswithin the ECTRLF. It will provide a first estimate of the sustainable harvest and fishinglevels that can be used by managers and industry as a benchmark against which to monitorcatch and effort. The assessment procedures being undertaken by QDPI&F researchersand results will be scientifically peer reviewed.

The preliminary assessment of the ECTRLF is based on catch and standardised dailytender catch rates for the years 1994-2002 from fishers compulsory daily logbooks fittedto the Schaefer form of a Surplus Production model. The population parameters estimatedby the model include an index of the ability of the population biomass to replace itself(growth and reproduction) and estimates of Maximum Sustainable Yield (MSY) and theFishing Effort required to catch the MSY (Emsy). The catch rates were standardised using aGeneral Linear Model to account for factors that could impact on catch rates such as year(recruitment effects), month (seasonal effects), area within the fishery (strata), hours


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fished per day and the primary vessel that the tenders were operated from. This was doneto ensure that the catch rates better reflected the underlying stock biomass, which is one ofthe main assumptions of a surplus production model. The data used in the model includesyears of both low and high fishing effort, which is required to fit a surplus productionmodel. A longer time-series of catch and effort data with a greater variety of fishinglevels, will improve the assessment. An eleven-year time-series is a relatively short dataset to use in a stock assessment model.

Guideline 1.1.3

The distribution and spatial structure of the stock:

ß Has been researched and established;

ß Is factored into the management arrangements and responses.

The Tropical Rock Lobster, Panulirus ornatus (Fabricus, 1798) is widely distributedthroughout the Indo-west Pacific. Although the ornate rock lobster (P. ornatus) is widelydistributed throughout northern Australia, the highest densities within Australian watersoccur in Torres Strait and north of about 14 degrees of latitude on the Queensland eastcoast (Figure 5).

Genetic studies indicate that fished populations within the Torres Strait and Queenslandwaters’ could be part of the one stock. The confidence in these genetic results is limitedbecause genetic variability was found to be very low in the lobsters sampled. However, thespecies larval biology and limited knowledge of the oceanography of the Coral Sea alsosuggest that there is a very high probability that larvae in the vicinity of the fisheries willbe mixed in the Coral Sea Gyre (Figure 5). This probability makes it more likely that thereis only one stock shared between PNG, Torres Strait and Queensland managed waters.The oceanography also suggests that any spawning that occurs south of about 14 degreeslatitude on the Queensland east coast would be unlikely to contribute recruits to the PNG,Torres Strait and Queensland east coast commercial fisheries.


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Figure 5. Map of Queensland, Torres Strait and Gulf of Papua showing the main fishinggrounds of Queensland and Torres Strait (dotted regions), breeding grounds (-_), migrationpathways (=>), current patterns (‡) in the Coral Sea.

As described in Guideline 1.1.1, research being conducted as part of the current FRDC-project (2002/008) will model ocean circulation patterns and predict likely trajectories oflarvae released from known breeding locations. This will assist to determine any sourceand sink populations within the larger stock.

Guideline 1.1.4

ß All removals from the fishery have been estimated (reliably).

ß All the estimates have been factored into the stock assessment.

ß All the estimates have been factored into the catch levels.

Commercial Removals

There are estimates of commercial removals from the fishery as described in Guideline1.1.1. The fishery is a single species fishery that targets P. ornatus for live export product,therefore it is estimated that there is nominal discard of the target species. The product islargely caught by divers with surface-supplied “hookah” gear, and the species is mostlycaptured live and in excellent condition. There is therefore almost no mortality of under-size or reproductive females lobsters using glove or noose gear on hookah method as the

Australia

PNG

Coral Sea

Torres

Strait

142 150 E

10

15 S

Port Moresby

Yule Island

East Coast

Gyre

Australia

PNG

Coral Sea

Torres

Strait

142 150 E

10

15 S

Port Moresby

Yule Island

East Coast

Gyre


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lobsters can be released unharmed following being checked for size and reproductivestatus. As there is a smaller free-diving component that uses spear, there is a low mortalityof under-sized or reproductive females. This is because divers are able to readilydetermine if a lobster is above the legal size. Furthermore, the annual seasonal closure ofthe fishery implemented in October 2002 (1 October to 1 February) was introduced toprotect the breeding stock of rock lobsters. The presence of breeding lobsters outside ofthis time is reduced, and therefore the incidental mortality of breeding females caught byspear would be minimal.

The results of the FRDC-project (2002/008) has assessed the effectiveness of the logbooksystem for collecting commercial harvest data, and recommendations for furtherimprovement of this data collection system will be included in the final report due later in2004.

Recreational and Fishing Charter Removals

The QDPI&F manages recreational fishing of the east coast Tropical Rock Lobster. Newmanagement restrictions were implemented in December 2002 including bag limits, sizelimits and protection of breeding females. A bag limit (all species) of three lobsters perperson or six lobsters per boat applies to recreational fishers within the limits of thecommercial fishery, or 5 lobsters per person or ten lobsters per boat outside of the limits ofthe commercial fishery has been implemented. A minimum size limit of 90 mm carapacelength or 115 mm tail length applies to all rock lobster species caught by recreational (andcommercial) fishers. Breeding females are also protected from take (in both commercialand recreational sectors), including both mated and egg-bearing females.

The recreational fisheries component is regarded as a small component due to theremoteness of the area of the fishery to any major developments or regional centres. Thereare thought to be very few charter or tour operators that operate within the fishery, andtherefore the take of lobster would be extremely low. Most of the recreation and fishingcharters occur south of the fishery on rock lobster stocks that are currently considered tobe a sink population that does not contribute to recruitment. The hypothesis that P. ornatusspawning south of 14 degrees is unlikely to contribute to recruitment is being investigatedby CSIRO as part of FRDC project 2002/008.

Indigenous Removals

There is a small indigenous catch within the ECTRLF. Annual harvest of lobsters byQueensland coastal indigenous communities (northeast coast and Gulf of Carpentaria) isestimated at 12,900 lobsters (Henry and Lyle, 2003). No specific species or spatialharvest information is currently available. It is likely that the majority of the estimatedharvest could be P. ornatus given that coastal communities surveyed were within the P.ornatus species distribution. It is also likely that indigenous community members fromTorres Strait frequently access and fish from Queensland reefs (east coast and Gulf ofCarpentaria components), and vice versa. The available catch data comes from a singlesurvey conducted in 2000/2001 and no specific species or spatial data is currentlyavailable to better define the indigenous take of P. ornatus from the ECTRLF.


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Guideline 1.1.5

ß There are estimates of the potential productivity of the stock.

ß There are estimates of the harvestable proportion.

As detailed under Guideline 1.1.2, FRDC-project (2002/008) will provide preliminaryestimates by the end of 2004 of the potential productivity of the stock and the harvestableproportion based on a Surplus Production Model applied to the commercial harvest datafor the years 1994 to 2002.

Management responses

Guideline 1.1.6

ß Reference points have been established (target &/or limit), whichtrigger clearly specified management actions.

ß A biological bottom line or effort upper limit has been established.

Although references points have not been established for the fishery QDPI&F has beenclosely monitoring catch and effort in the fishery since 1998 for any indication ofoverfishing in the commercial catch rates. In addition FRDC project 2002/008 was fundedto commence a detailed examination of all data available on the fishery (fishery dependentand independent) and if possible, make a preliminary assessment of sustainable harvestlevels. A preliminary assessment was provided by DPI&F scientist Clive Turnbull to theJune 2002 meeting of Harvest MAC. This assessment indicated that although the averagefishing effort and catch in recent years appears to be sustainable, there is a significant levelof latent or potential fishing effort, which needs to be addressed.

Although latent effort in the fishery has been identified as an issue, the risk that all of thiseffort will be activated in the near future appears low. The latent effort is due to thestructure of the fleet, which consists of 20 primary vessels that fish mainly in the TorresStrait but also have an east coast endorsement. Only 8 primary vessels are restricted tofishing on the east coast. Even in the year of highest effort, 2001, when the shift of effortfrom the Torres Strait to the east coast was highest due to the lowest ever recorded catchrates in Torres Strait, only about a half of the potential fishing effort was used. HarvestMAC however, is currently investigating mechanisms to reduce latent effort in the fishery.Average annual fishing effort (4600 tender days) and average annual catch (135 t) over thelast five years is within indicative sustainable harvest levels, based on the preliminaryassessments undertaken.


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Guideline 1.1.7

Management strategies are in place to control the level of take.

New management strategies were recently introduced to further restrict the level of take inthe fishery. During 2001, there were concerns that catch and effort may have beenreaching unsustainable levels. In addition research on the Torres Strait fishery by CSIROpredicted very low levels of recruitment for 2000 and 2001 and suggested that the size ofthe spawning stock had declined. As the two fisheries are at present considered to fish thesame stock of lobster, new management measures were introduced to the ECTRLF in2002 that ‘mirror’ the recent management changes in the TSTRLF. These measuresincluded a 4 month closure (cf. 2 months total commercial fishing closure plus 2 monthsban on use of hookah in Torres Strait over the same period as the ECTRLF), recreationalbag limits (also apply to Torres Strait), introduction of a minimum size limit (the same asin Torres Strait). These new management measures and are aimed at allowing spawningstocks to rebuild by reducing fishing mortality and increasing escapement of adults to thespawning grounds.

Details of these management controls, which relate to limiting catch and effort include:

Output controls:

The new output controls implemented in December 2002 include:

Size Limit: A minimum size limit of 115 mm tail length (90 mm carapace length) toreduce fishing mortality by increasing the size at first harvest. The minimum size limitwill assist to prevent growth overfishing; and

No-takes: Protection of breeding females including mated and egg-bearing females toreduce fishing mortality on the breeding animals.

Recreational Bag Limit: Recreational bag limits have been introduced that allow threelobsters (all species) per person or six lobsters per boat for recreational fishers within thelimits of the commercial fishery, or 5 lobsters per person or ten lobsters per boat outside ofthe limits of the commercial fishery.

Input controls:

Seasonal Closure: An annual seasonal closure between 1 October to 1 February, to reducefishing mortality especially on reproductive females and breeding aggregations. This wasintroduced on 1 October 2002;

Limited entry: In 1996, a policy was implemented by QFMA that no new tender licencescould be issued for the TRL fishery. This policy has capped new entry into the fishery, andtherefore capped any new fishing effort.

Vessel restrictions: A primary commercial fishing boat may not be more than 20m inlength. A tender commercial fishing boat may not be more than 7m in length. In 2002, the


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QFS amended its boat replacement policy to cap increases in fishing power by limitingupgrades in the size of vessels. This policy will generally allow for upgrades to 14 metresin length (LOA) where a boat is less than or equal to that length. Boats greater than 14metres in length (LOA) will generally be able to be replaced only with a boat of the samelength or less. The primary consideration will be that a boat replacement does not lead toan unacceptable increase in fishing effort or capacity.

Gear restrictions: Gear restrictions are in place and limit the collection of lobsters to eitherby hand, hand-held non-mechanical implements such as rubber powered hand spears andnoose rods, or by using mechanical implements such as a spear gun.

Closed areas: A number of closed areas exist. The area outside of the commercial fishery(south of 14 degrees Latitude) is closed to commercial fishing. Other closures includeMarine Parks National Park, Buffer and Preservation Zones. Of particular note, one largeMarine National Park zone exists within the commercial fishery, which makes up about1/5th of the total area of the east coast sector of the ECTRLF. A total of 40% of the areaotherwise open to harvest operations will be closed when the revised zoning arrangementsfor the Great Barrier Reef Marine Park come into place in July 2004.Changes to the legalfishing areas are likely to be affected in the proposed re-zoning of the GBRMPA to occurin 2004.

Tender-distance limit from primary vessel: A tender commercial fishing boat must not beused further than 5 n miles from its primary commercial fishing boat or, if the primarycommercial fishing boat is located at a reef, the reef where the primary commercial fishingboat is located.

Number of operators per vessel: Only one diver can fish from each tender or primaryvessel at any time. This limits the total effective fishing time that is included in each‘tender-day’ unit of effort. It is prohibited to collect lobsters from the primary vessel at thesame time that tenders are also engaged in fishing.

Outcomes of the FRDC-project (2002/008) expected later in 2004 will be considered byQDPI&F and Harvest MAC in assessing the effectiveness of current managementstrategies in controlling the level of catch and effort (including latent effort) in the fisheryand for developing future management strategies for the fishery.

Guideline 1.1.8

The fishery doesn’t threaten stocks of by-product species.

The fishery is regarded as a single species fishery, as 99% of the product harvested is theone species, P. ornatus. Advice from processors indicates that incidental to the P. ornatuscatch, three other species of rock lobster are also occasionally captured - P. versicolor, P.longipes femorostringa and P. penicillatus. All species have broad Indo-West Pacificdistributions. P. versicolor is regularly captured, although in very low numbers (<1% ofthe total combined harvest). The harvest of these species would be highly unlikely to


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threaten stocks of these species, as their main distribution and areas of abundance offnortheast Queensland do not overlap those of P. ornatus, these other species occurringmainly on outer-shelf reefs where P. ornatus are uncommon. Other rock lobster speciesare not captured in the ECTRLF (see Table 1, p4).

Tropical rock lobster are not reported to the species level on the compulsory dailylogbooks because of the very low level of capture of species other than P. ornatus andsome difficulties for fishers in species identification.

Guideline 1.1.9

Management arrangements have a high chance of achieving objective 1(ie. Maintaining ecologically viable stock levels).

The data collection and assessment processes which exist in this relatively small scalefishery provide reliable and increasingly comprehensive information to supportmanagement decision making. The management measures described under guidelines1.1.1 to 1.1.8 ensure a high probability that catches of P. ornatus will remain sustainablein the long-term. In response to concerns at the status of the stock, a seasonal closure andprohibition on taking mated and egg-bearing females was introduced to protect thebreeding stock, and a minimum size limit introduced to protect young adults. Mechanismsfor reducing latent effort in the fishery are being considered by Harvest MAC andQDPI&F. The results of FRDC research project 2002/008 will provide the basis for futureresearch aimed at establishing biological reference points that can be used to enhanceecologically sustainable management of the fishery.

Objective 2. Where the fished stock(s) are below a defined referencepoint, the fishery will be managed to promote recovery to ecologicallyviable stock levels within nominated timeframes.


Guideline 1.2.1

A precautionary recovery strategy is in place specifying managementactions, or staged management responses, which are linked to referencepoints. The recovery strategy should apply until the stock recovers, andshould aim for recovery within a specific time period appropriate to thebiology of the stock.

No biological reference points have been established in this fishery. However, on the basisof a preliminary stock assessment, Queensland east coast populations of Tropical RockLobster are considered to be sustainable under current levels of fishing effort.


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Guideline 1.2.2

If the stock is estimated as being at or below the biological and/or effortbottom line, management responses such as zero targeted catch,temporary fishery closure or a ‘whole of fishery’ effort or quotareduction are implemented.

Not Applicable

Principle 2.

Fishing Operations should be managed to minimise their impacton the structure, productivity, function and biological diversity ofthe ecosystem.

Objective 1. The fishery does not threaten bycatch species

The Fisheries Regulations 1995 prescribe that only crayfish or rock lobsters may be takenunder the “R” fishery symbol, prohibiting the take of any noncrayfish bycatch orbyproduct species.


Guideline 2.1.1

ß Information is collected on the composition and abundance ofbycatch.

ß The information is reliable.

The ECTRLF is a highly selective single-species dive fishery using prescribed gear and assuch there is no bycatch taken by commercial operators. This has been confirmed duringrecent research observer trips with commercial fishers.


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Assessments

Guideline 2.1.2

There is a risk analysis of bycatch vulnerability to:

ß Fishing technology (eg. Bycatch catchability, damage)

ß Ecological impacts (eg. Loss of predators/prey, additions ofbait/discards as extra food)

Not Applicable

Management Responses

Guideline 2.1.3

ß Measures exist to avoid the capture and mortality of bycatch(beyond sustainable levels).

ß If suitable technology is not available, steps have/are being takento develop it.

Not Applicable

Guideline 2.1.4

There is an indicator group of bycatch species.

Not Applicable

Guideline 2.1.5

Decision rules are in place for significant perturbations in the bycatchindicator species.

Not Applicable

Guideline 2.1.6

Management arrangements have a high chance of achieving objective 1(ie. The fishery doesn’t threaten bycatch species)

Guidelines 2.1.1 to 2.1.6 are not applicable as the fishery is a highly selective single-species fishery and no bycatch is taken. As such, there are no threat abatements plans,recovery plans or bycatch reduction strategies applicable to the fishery.


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Objective 2. The fishery avoids mortality/injury to endangered,threatened, or protected species. The fishery avoids/minimisesimpacts to threatened ecological communities


Guideline 2.2.1

Reliable information is collected on interactions with endangered,threatened, or protected species and threatened ecological communities.

The ECTRLF has no reported interaction with endangered, threatened or protectedspecies. The fishery operates in regions where marine turtles and dugongs are present,however Queensland legislation prevents the taking of turtles and dugongs in the course ofany fishing other than traditional fishing. Therefore while these species may be frequentlyseen within the ECTRLF they are protected from non-traditional fishing. Interactions withthese species could occur during regular fishing vessel transit through the fishery area butare likely to be very rare.

A Species of Conservation Interest (SOCI) logbook is being progressively implementedacross all Queensland-managed fisheries to facilitate the reporting of incidental interactionwith endangered, threatened or protected species.

No threatened ecological communities have been identified within the area of the fishery.

Assessments

Guideline 2.2.2

There is an assessment of impacts to endangered, threatened, orprotected species.

Not Applicable

Guideline 2.2.3

There is an assessment process of impacts to threatened ecologicalcommunities.

Not Applicable


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Guideline 2.2.4

Measures exist to avoid the capture/mortality of endangered, threatened,or protected species.

Not Applicable

Guideline 2.2.5

Measures exist to avoid impacts to threatened ecological communities.

No threatened ecological communities have been identified in the area of the fishery andinteractions that impact on endangered, threatened or protected species are consideredremote in this dive fishery. Therefore assessment has not been undertaken andmanagement measures have not been developed. If future research indicates thatinteraction does occur, assessment will be undertaken as appropriate.

Guideline 2.2.6

Management arrangements have a high chance of achieving objective 2(ie. The fishery avoids mortality, injury, or impacts to endangered,threatened, or protected species and to threatened ecologicalcommunities).

There is a high probability of the objective being achieved, as the ECTRLF is a singlespecies fishery where collection methods are highly selective and stocks are collected byhand.


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Objective 3. The fishery is conducted in a manner that minimises theimpact of fishing on the ecosystem generally.


Guideline 2.3.1

Information is collected and collated on impacts to the environment/ecosystem generally, including:

ß Ecological communities (benthic, water column, associated &dependent species)

ß Food chains (structure, productivity)

ß Physical environment (benthic structure, water quality)

The fishery is not considered to have a significant impact on the broader marineenvironment. Unlike other lobster fisheries, no pots or traps are used to collect the targetspecies. While it is recognised that, in hand collecting lobsters, divers are likely to havesome contact with the benthos, the level of contact and impact is considered minimal.

The use of hookah gear by fishers allows divers to target live product. The collection of P.ornatus is non-destructive. The level of such activity is very low. Potential impacts arethought to be minimal.

There are no known negative impacts of removing tropical rock lobster from the marineenvironment. Some species prey on lobsters and reducing lobster numbers by fishing willreduce their prey abundance. However, the species known to prey on juvenile lobsters inTorres Strait (for example ray sharks, groupers) are not specialists but rather species thatopportunistically feed on a wide range of crustacean and teleost species.

Although most fishers retain live P. ornatus, there are some fishers who target P. ornatusfor frozen tail product. The live product fishery also has some tails by-product whenanimals are not of a high quality standard for live export. These animals are tailed and thisproduces a small amount of discards (the heads). These discards are considered to bereadily incorporated into the food web and unlikely to have a significant impact on waterquality or the food chain in the locality.

Assessments

Guideline 2.3.2

A risk analysis is conducted into the susceptibility of fishing operationsof ecological communities, food chains, and the physical environment.


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Not Applicable

Management response

Guideline 2.3.3

Management actions are in place to ensure significant damage to theecosystem does not occur.

Not Applicable

Guideline 2.3.4

Decision rules exist which trigger management responses whenmonitoring detected impacts via:

ß Selected indicators exceed a pre-determined level;

ß A precautionary interpretation of the available data.

Not Applicable

Guideline 2.3.5

Management arrangements have a high chance of achieving objective 3(ie. The fishery is conducted to minimise the impact of fishing operationson the ecosystem generally)

No specific management responses have been developed, as the components of the marineenvironment described under Guideline 2.3.1 are not considered to be significantlyimpacted by the fishery. Should the need arise, appropriate management measures will beconsidered by the relevant advisory groups and where necessary, implemented by QFS.


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5. Information Sources

References

Australian Fish Management Authority (2003). Draft assessment report: Torres StraitTropical Rock Lobster Fishery. April 2003. Released for Public Comment. Collatedby J. Fisher and J. Prescott.

Bell, R. S., P. W. Channells, J. W. MacFarlane, R. Moore, and B.F. Phillips (1987).Movements and breeding of the ornate rock lobster. Panulirus ornatus, in TorresStrait and the north-east coast of Queensland. Aust. J. Mar. Freshw. Res. 38:197-210

Channells, P. W., B. F. Phillips, and R. S. Bell (1987). The rock lobster fisheries for theornate rock lobster, Panulirus ornatus in Torres Strait and on the north-east coast ofQueensland, Australia. Fisheries Paper 87/8, Aust. Fisheries Service, Canberra.

Dennis, D.M., T.D. Skewes, and C.R. Pitcher (1997). Habitat use and growth of juvenileornate rock lobsters, Panulirus ornatus (Fabricus, 1798), in Torres Strait, Australia.Aust. J. Mar. Freshw. Res. 48:663-670.

Henry, G.W. and J.M. Lyle (2003). The National Recreational and Indigenous FishingSurvey. Final report for FRDC Project 99/158. Ed. G.W. Henry & J.M. Lyle. January2003 NSW Fisheries Report Series.

King, M. (1995). Fisheries Biology, Assessment and Management. Fishing News Books.Victoria, Australia.

MacFarlane, J.W. and R. Moore (1986). Reproduction of the Ornate Rock LobsterPanulirus ornatus (Fabricus), in Papua New Guinea, Aust. J. Mar. Freshw. Res.37:55-65.

Moore, R. and J.W. MacFarlane (1984). Migration of the Ornate Rock Lobster Panulirusornatus (Fabricus), in Papua New Guinea. Aust. J. Mar. Freshw. Res. 35:197-212.

Pitcher, C.R. (1993). Spiny lobster. In, Inshore Marine Resources of the South Pacific:Information for Fishery Development and Management. Ed. A. Wright & L. Hill.pp543-611. (IPS/FFA/ICOD Press: Suva)

Philips, B.E., R.S. Bell, P.W. Channells, W. Dall, and G.P. Kirkwood (1983). TropicalRock Lobster (Panulirus ornatus), Report on CSIRO Research from 1980-83. CSIROMarine Laboratories, Marmion, Western Australia. August 1983.


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Appendix 1.Current joint FRDC CSIRO QDPI&Fresearch project 2002/008– excerpts from theproject agreement July 2002.

PROJECT TITLE

Biology, larval transport modeling and commercial logbook data analysis to support management of theNE Queensland rock lobster Panulirus ornatus fishery.

BACKGROUNDThe NE QLD lobster fishery operates between Cape York (~11S) to Princess Charlotte Bay (~14S) in the

Great Barrier Reef Marine Park, and is managed by the QLD Fisheries Service. The majority of the catch istaken live by divers using surface supplied breathing apparatus and there are no bycatch species taken. Theproduct is held in onboard tanks prior to dispatch to seafood handlers in Cairns. The main market for livePanulirus ornatus is CHINA via Hong Kong where it is sold as Sashimi. Annual catches prior to 1999 werearound 40-60 t but a recent doubling of fishing effort (700 to 1400 primary boat days) has seen the 2000catch increase to over 110 t. Current value of the fishery is ~$AUS 6 million. There are 29 primary boatendorsements with 95 associated tender vessels in the fishery and potential exists for effort to more thandouble if latent license holders become active in the future.

The NE QLD lobster Panulirus ornatus population is part of a widely distributed stock contained largely withinthe NW Coral Sea. The species occurs along the Queensland coast, into Torres Strait and across southernPapua New Guinea and whilst breeding probably occurs throughout the entire range it is not known whichpopulations contribute to recruitment to the adult populations. Recent plankton surveys indicate that lobsterlarvae released south of the NE QLD fishery border (14°S) may be lost to the south in the East AustralianCurrent (EAC); hence this region may contain a sink population. Apart from information gleaned duringextensive tagging studies conducted by CSIRO during the early 80’s little is known of the biology and ecologythe NE QLD lobster population, or its extent. This application includes the research tasks that will address theurgent management needs, given the high likelihood that the Torres Strait and NE QLD fisheries areoverexploited. The research outcomes will identify future priorities to assist sustainable management that willform the basis of research applications beyond June 2003.

NEEDThe need for targeted research to support management of the NE QLD lobster fishery has arisen as a

result of the recent and dramatic increase in catch and concern that the increase is unsustainable. Inresponse to this concern the QDPI&F issued an investment warning for the fishery on 31 May 2001. Also, theNE QLD lobster population is likely part of a wider distributed stock, shared by Australian and PNG fishers inTorres Strait and now these fisheries are over-exploited and managers are taking measures to ensuresustainability. In NE QLD, there is an urgent need to gain biological and fishery information to allowimplementation of management measures that will ensure catches are sustainable. The commercial catch ismonitored by the QFS with a logbook program but no formal stock assessment has been undertaken usingthis data. However, effort and catch has doubled over the past three years, whilst CPUE has tended todecline. There is also a need to collate existing and new information on the biology of the NE QLD lobsterpopulation to assess current impacts of fishing on the stock and so that future research can be prioritised andproperly designed to ensure its cost-effectiveness. Future research would likely include field studies to assiststock assessment, breeding population studies, targeted oceanographic studies and efficient observerprograms. A critical need is knowledge of the extent of the breeding population and the fate of larval recruitson the NE QLD coast. There is currently pressure from the industry to open areas south of 14°S. However, forinformed management decisions it is important to establish how well stocks are connected. Existing allozymegenetic data suggested that the NE QLD coast lobster population was genetically indistinguishable frompopulations in Torres Strait or in the Gulf of Papua. It is likely, given the long larval life of lobsters (6 months)that the NE QLD coast, Torres Strait and the eastern Gulf of Papua are source areas and larvae spawnedthere mix in the NW Coral Sea gyre and provide recruitment to these regions as well as to sink areas south of


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14°S. If this is true, fishing occurs in the source area but not on the sink population; biological information isrequired to resolve this contrary situation.

OBJECTIVES1 The overall research objective is to collate fishery and biological information on the NE QLD lobsterpopulation to permit an assessment of the status of the fishery, recommend sustainable managementmeasures and identify future research priorities to fill information gaps that preclude sustainable and long-term management of the fishery.

2 ·Collate historical research information on adult and juvenile lobster geographic and size distribution,spawning and settlement grounds and map spatial data using Arcview software.

3 ·Collate information collected by the fishery on size and sex distribution, and distribution of breedinglobsters.

4 ·Recommend sustainable management measures5 ·Identify information gaps precluding efficient and sustainable management and prioritise future researchto address these gaps.

6 ·Develop an oceanographic model of the mesoscale circulation in the NW Coral Sea.7 ·Determine trajectories of larvae released by the NE QLD lobster population and assess the fate of theselarvae.

8 ·Determine the potential boundaries of the source and sink populations.9 Identify and prioritise future oceanographic research to assist sustainable management10 Collate, validate and analyse all catch and effort data available from QFS logbook entries.11 Validate logbook information through an observer program and recommend a cost-effective protocol forfuture programs.

12 ·Assess catch and effort trends of the NE QLD lobster fishery and develop a stock status methodology.

13 Recommend future logbook data collection.

PLANNED OUTCOMES

The overall objective of this research is to collate biological, oceanographic and fishery information to supportmanagement of the NE QLD fishery. This will achieve sustainable yield from the fishery by moving effort awayfrom areas of high to low recruit-per-egg probability. The outcomes are also relevant to management of theTorres Strait fisheries (PNG and Australian) given the likely close links between the populations. Apart frompreliminary support for management, the main aim of this project is to identify need for future research.Specific outcomes of the sub-projects are listed.

(1) Data-mining and collation (CSIRO).The collation of existing and new information on the biology and ecology of the NE QLD population will

allow managers to make informed decisions on the efficacy of management measures that can beimplemented to ensure fishing is sustainable.

A principle outcome will be the development of future cost-effective and feasible research programs, likely tototal ~$600k over the subsequent 3-4 years, to assist long-term management of the fishery.

(2) Larval transport modeling (CSIRO).The outcomes of this research will be invaluable to managers of each fishery sector; NE QLD, PNG

Torres Strait and Australian Torres Strait as it will assess the potential sources of recruits and assist inidentifying the critical breeding grounds. In combination with sub-project (4) this research will identify thegenetic separation of the stock. By identifying the likely boundary between source and sink populations thisresearch will assist managers in assessing strategies for reducing fishing impacts. The research will provide agreater understanding of environmental influences on year-to-year variation of fishery yield, thereby reducingthe chances of incorrectly attributing poor catch-rates to over-fishing, or high catch-rates to under-fishing.

(3) Commercial logbook catch and effort data assessment (QDPI).The Queensland lobster Industry will benefit from this research through management related advise

aimed at ensuring the stocks are harvested in a sustainable manner. This will be achieved by providing anassessment of the current stock status based on the available data. In addition suggestions will be providedto manager and industry on methods of improving the quality of the data and hence the reliability of the stock


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estimates. Data permitting an estimate of Maximum Sustainable Yield (MSY) and advice on the most effectivemeans of restricting effort or catch to achieve MSY will be provided to managers and industry.

There will be some flow of benefit to Torres Strait as the lobster stocks are a straddling stock and it isessential that both the Torres Strait and Queensland fisheries are managed sustainably.

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