Proposed Arrangements for the Landing of Large Sharks

Introduction

Comments are invited from Ocean Trap and Line fishing business owners and other interested persons on proposals to improve the arrangements for the harvest of large sharks in the Ocean Trap and Line Fishery.

Fishing Activity

In NSW waters a number of species of large sharks are harvested by commercial fishers. This occurs mainly in the Ocean Trap & Line, Ocean Trawl and Estuary General fisheries.

NSW DPI has received industry representations and verified reports regarding an increase of fishing effort targeting large shark species by some Ocean Trap and Line fishers, particularly on the mid-north and north coasts of NSW. Fishing effort appears to be shifting into the shark fishery, in preference to operators’ former activities in other sectors of the Ocean Trap & Line Fishery (OTLF), the Ocean Trawl Fishery or the Commonwealth's Eastern Tuna and Billfish Fishery.

The NSW catch of large shark species ranged from 110 tonnes to 169 tonnes per year during the period 1997/98 to 2005/06. The OTLF averaged approximately 70% of that catch. The portion of catch taken by the OTLF increased to 75% in 2005/06 and is currently at around 83% in 2006/07. Additionally, the catch of sharks recorded as ‘Sharks, unspecified’ has increased from an average of 35 tonnes (1997/98 - 2004/05) to 75 tonnes (2005/06 - 2006/07).

Table 1 and Figure 1 - Catches of shark currently subject to the trip limit.

Table 1: Reported catch* (t) of current ‘trip limit’ sharks** taken by each fishery.

Year	OTL	OPT	OFT	EG	Total
1997/98	70.3	14.6	31.7	11.2	127.8
1998/99	70.5	19.7	17.7	10.9	118.9
1999/00	95.9	22.5	27.1	13.2	158.7
2000/01	122.6	19.6	16.4	8.4	167.0
2001/02	124.2	15.2	17.3	10.0	166.7
2002/03	92.9	21.6	17.1	8.9	140.5
2003/04	71.9	16.8	14.3	7.9	110.9
2004/05	87.1	13.6	16.5	11.7	128.8
2005/06	124.5	13.9	19.5	8.6	166.5
2006/07***	130.2	8.7	15.3	3.5	157.6

* Weight converted to cleaned weight, i.e head, gilled and gutted.

** Trip limit species include: whaler (all species), gummy, blue, hammerhead, mako, Port Jackson, school, and tiger sharks, and those sharks reported as ‘sharks unspecified’.

*** 2006/07 – Catch reported as of 1 May 2007. Catch may be incomplete due to outstanding records and ongoing validation.

NSW DPI is taking action to prevent the displacement of fishing effort into NSW fisheries as a result of the Commonwealth Government’s buyout program.

Figure 1: Total reported catch* (kg) of current ‘trip limit’ sharks** in the OTL Fishery.

Table 1: Reported catch* (t) of current ‘trip limit’ sharks** taken by each fishery.

The increased targeting of sharks in the OTLF led to the introduction of a daily catch limit in September 2006. The current daily limit is 1000 kilograms for specific shark species (or groups of species) or, if the fishing trip is 48 hours or more, the limit is 2000 kilograms.

This daily catch limit was designed to restrict catch pending the development of longer term management arrangements. Some fishers have reported that the current controls hamper the efficiency of operations and have not significantly constrained the expansion of fishing effort.

The rules for recreational fishing for shark species were changed recently. The combined daily bag limit for all species is five, with a limit of one per day for tiger, mako, blue, hammerhead and whaler shark species. A zero bag limit applies to wobbegong.

Sustainability and Market Factors

There is concern about the status of shark stocks in various fisheries around the world. A National Plan of Action has been developed to conserve shark stocks, and NSW is a signatory to this plan. NSW does not permit the harvest of sharks listed as threatened or endangered, and strong penalties are in place to protect such species.

Sharks are particularly vulnerable to over fishing due to their low reproductive rate. Generally, most shark and ray populations throughout the world have shown that they can withstand only small levels of fishing before the stock becomes depleted and at risk.

The potential depletion of shark populations also poses broader ecological risks. Sharks are ‘top predators’ and their removal can cause negative effects to both prey and non-prey species.

It is apparent that the potential financial returns from shark fishing are attractive, and more fishers are starting to acquire gear ready to start shark fishing. A number of existing shark fishers have expressed concern that a higher level of shark fishing will adversely impact on shark stocks and devalue market prices.

Proposed New Arrangements

NSW DPI has developed the following proposals in order to ensure that shark fishing continues to be sustainable and viable into the future. NSW DPI also wishes to ensure that the arrangements are practical for fishers and cost effective.

Please note that the arrangements for the commercial harvest of large shark species will be kept under ongoing review, particularly to respond to any new scientific information about the status of shark stocks or their biology. In the interim, fishers who choose to start shark fishing should not assume that they will have an automatic right to continue in the future.

Total annual catch limit

A total catch limit of 90 tonnes (dressed weight) for the OTLF would be set for each fishing period, for example 1 July to 30 June the following year. The annual catch limit may be implemented for the 2007/08 financial year, if the proposal is adopted.

This upper limit is based on the average catch for the OTLF for targeted shark species prior to the increase in shark fishing (i.e. from 1997/98 to 2004/05). This level of catch has been identified as a precautionary limit on the assumption that catches around this level appear to have been relatively stable in the past.

Weekly commercial catch limit

A weekly catch limit of 2 tonnes for commercial fishing would be introduced.

This would help to spread catches throughout the year so as not to be concentrated during periods when, for example, the sharks may be mating. It also may pre-empt any pressure on fishers to ‘race to fish’ and help to reduce any potential operating inefficiency that is apparently created by the current daily trip limit.

The weekly catch limit would apply from midnight Sunday to midnight the following Sunday.

Catch reporting

Those OTLF fishers who choose to target large sharks would be required to record their catches on a daily basis. Fishers who only land shark as by-catch (ie, 2 or less) would continue to record catches on their OTLF log sheet.

Fishers who land more than two (2) sharks per day would need to complete a daily catch record (to be submitted immediately after the end of each week) detailing catch for each species, effort and the area fished. This would help NSW DPI to gather more information about each shark species so that the arrangements may be adjusted for particular species, if necessary. Pre and post reporting may also be considered if compliance risks are identified.

Identification guide and retention of sharks with heads

Getting better information on the species that are landed is essential for making future decisions about shark fishing.

Most shark catch is currently reported as ‘Shark, unspecified’. A waterproof identification guide would be sent to OTL fishers to help them record the correct species of shark.

Additionally, NSW DPI proposes to either require shark fishers to retain carcasses complete with heads or require some selected fishers at defined times to land the sharks with heads.

Landing sharks with their heads would provide useful information in conjunction with the current scientific observer program (see below) as well as assisting with species identification.

Species to which the limits would apply

The arrangements would include all shark species with some exceptions such as wobbegong sharks until more information is available on the quantity and species of shark landed in NSW. Wobbegongs will be subject to a 12 carcass daily trip limit as determined through the environmental assessment process.

Scientific observer program

NSW DPI scientists are currently running a scientific observer program funded largely by commercial fishers, which is focusing on line methods in the Ocean Trap and Line Fishery. The survey will run for three years. It is expected to provide information that will be essential in developing any future arrangements for the shark fishery and the broader OTLF.

Note: that the OTLMAC has not endorsed the idea of a binding catch limit, but has indicated preliminary support for the idea of setting a total catch level that would trigger consideration of further action to protect shark stocks.

Other possible supporting options

Some commercial fishers have previously made the following comments.

1. School and gummy sharks should be excluded from the list of shark species. NSW DPI considers that these species are under pressure and it would be more cost effective to include them in the arrangements for other targeted shark species.
2. Rules should be put in place to prevent fishers setting lines for shark fishing in the same place and time as ocean prawn trawling operations, to prevent conflict between competing fishers. NSW DPI encourages industry participants to develop and abide by voluntary arrangements in the first instance.
3. A limit should be introduced on the number of lines and hooks that shark fishers can use. NSW DPI considers that the proposed limits on annual and weekly shark catches should be sufficient without the need for more complex rules and compliance measures, subject to review in light of the use of the new rules.

How to make written submissions

You can send written comments on the proposals or any suggestions about alternatives to NSW DPI by Monday 5 November 2007 at the following addresses:

If you would like to discuss the proposals, please contact Veronica on (02) 9527 8550.