Spanish mackerel fishery working group

This working group provides operational advice on the management of the east coast Spanish mackerel fishery.

• 17-18 May 2021

  The inaugural East Coast Spanish Mackerel Working Group met on 17 and 18 May 2021 in Brisbane. This was the first meeting of the newly appointed working group. The purpose of the meeting was to provide information on the Sustainable Fisheries Strategy, review the current management and stock issues and commence discussions on developing a harvest strategy for this fishery.

  Members were invited to provide a general update from the region or the sector they represent. Several members commented on the issue of shark depredation, which is thought to be a wide-spread issue affecting other fisheries across multiple jurisdictions. Members generally agreed that large numbers of Spanish mackerel are lost to depredation and supported further research to quantify the extent of depredation, identify the species responsible and better understand what is driving the apparent increased prevalence of shark interactions.

  Members also raised other issues that may impact on the abundance of Spanish mackerel, including seasonality and environmental drivers of recruitment such as water quality, urban development and oceanographic changes. While these may impact Spanish mackerel stocks, they are outside the control of Fisheries Queensland and need to be accounted for in management arrangements. Some members raised bycatch and discarding in other fisheries that are incidentally capturing Spanish mackerel and contributing to overall fishing mortality (for example, net fisheries). Other issues that were raised included the need to account for managing different types of recreational fishers – those that may incidentally catch Spanish mackerel (as part of reef line fishing activities) and those that may target Spanish mackerel, the abundance and management of bait fish and the need for management intervention in the short-term.

  The working group noted information to help inform a shared understanding of the status of east coast Spanish mackerel stocks. It was noted that the commercial harvest has averaged 300 tonnes annually since 2004, however total harvest is well below the current total allowable commercial catch (TACC) for the species. It was noted that Fisheries Queensland’s monitoring programs are picking up increased recreational fishing participation and current east coast Spanish mackerel recreational harvest is estimated to be approximately 170 tonnes.

  The working group was provided a preliminary presentation on the results of the 2021 east coast Spanish mackerel stock assessment (not yet published) and how this will inform future decision making in the fishery. Fisheries Queensland advised the draft biomass for Spanish mackerel is estimated to be 17% of unfished biomass. The working group noted the limit reference point of 20% unfished biomass is the point below which a fishery is recommended to be closed under the Sustainable Fisheries Strategy and under National Guidelines. While there are some uncertainties, this is a complex stock assessment with good confidence about the outputs. Industry members noted concerns that a new stock assessment model was used, which produced lower biomass estimates than the previous assessment in 2018.

  The working group noted that the stock assessment is currently undergoing independent scientific peer review, which will also be published in coming months. The working group requested more detail on projections for different rebuilding strategies for discussion at the next meeting. Given the stock is shared with New South Wales the working group felt it was important to invite them to attend the next meeting to discuss rebuilding strategies.

  Fisheries Queensland provided a presentation on the methodology and outcomes from the BDO social and economic indicators report for commercial and charter fisheries. The working group noted the social and economic indicators dashboard that is available on the department’s website is an important tool for businesses to view performance of the fishery. While the fishery’s economic performance is not positive, all members agreed that this information is important in assessing the performance of the fishery, and when considering the economic impacts of management or other changes.

  The working group were presented with an overview of the current management arrangements in place for Spanish mackerel. Given the low biomass estimate, the working group agreed that the management arrangements and fishing rules for all sectors would need to be reviewed to inform management interventions and a rebuilding strategy for this stock.

  All members noted the importance of Spanish mackerel for local supply of fish, particularly in regional Queensland where the species is popular. Given the status of the stock, the working group asked about the feasibility of making changes ahead of the 1 July 2021 fishing season, starting in 6 weeks. Fisheries Queensland provided information on the process to review management of this stock and develop a harvest strategy ahead of the 1 July 2022 fishing season. The working group agreed that management change needed to be in place as soon as possible noting that it was likely to be significant and consultation with other stakeholders would be required. The working group noted the need for a number of meetings in 2021 to consider management options for further consultation later in 2021.

  Fisheries Queensland provided information on the monitoring and research programs that are in place for the Spanish mackerel fishery. The working group noted the extensive monitoring data over a long time series for east coast Spanish mackerel, with 13% of the commercial catch represented in the data set over the last 10 years. This is higher than many other fisheries, and members noted the continued contribution of commercial and recreational fishers in volunteering this information and the good working relationship with the Fishery Monitoring team. The working group recognised the importance of the combined data collected from commercial fishers and recreational fishers, which provides more confidence about the science underpinning both the status and management of this stock. The working group were keen to see this level of monitoring continue.

  The next meeting will be in late June or early July. Members have sought some information on rebuilding projections, how recreational harvest is calculated, release mortality, environmental influences, fishing effort (for example, standardised catch rates), targeting behaviour between the coral reef line and Spanish mackerel fisheries and biological information from monitoring and research. The next meeting will focus on working through possible management interventions, stock rebuilding strategies and initial development of a harvest strategy.

  The Spanish Mackerel Working Group members are: Animal Science Queensland (Chair – Sian Breen), Fisheries Queensland (Director, Management and Reform – Kimberly Foster, Principal Fishery Manager – Tony Ham, Senior Fishery Manager – Darren Roy, Fisheries Manager – Ash Lawson, Fisheries Scientist – Joanne Langstreth, Queensland Boating and Fisheries Patrol – Chris Morrison), commercial fishing (Chris Hain, Tony Lanzi, Anthony Vass, Richard Gilmore), recreational fishing (Ryan Tully, Gary Powis, William Bowtell), Great Barrier Reef Marine Park Authority (Darren Cameron) and conservation sector (Debbie Chamberlain).

• 7-8 February 2022

  The East Coast Spanish Mackerel Working Group met for the second time on 7-8 February 2022 online. The purpose of the working group meeting was to discuss the 2020 east coast Spanish mackerel stock assessment, consider management options and inform development of a draft harvest strategy for broader public consultation in March / April 2022.

  Fisheries Queensland presented an overview of the stock assessment process, the 2020 east coast Spanish mackerel stock assessment, external review, the department’s response to the external review and expert panel discussions. Members discussed and clarified specific concerns regarding the stock assessment and data, including recruitment deviations, catch rate standardisations, steepness, shark depredation, hyperstability and marine park zoning. Members appreciated the presentation and responses to concerns. While some members still held reservations with the stock assessment model and data inputs, others were supportive of the stock assessment science, noting it was based on the best available data and best practice methodology. Fisheries Queensland noted that at an estimated 17% of unfished biomass, management action is required to rebuild the stock back to sustainable levels.

  Based on the results of the stock assessment, the working group discussed a range of scenarios and management options to rebuild the east coast Spanish mackerel stock. The rebuilding scenarios presented ranged from a 30-40% reduction in current harvest levels to a complete closure of the fishery, including various combinations of possible management measures to rebuild the stock to an interim rebuilding target reference point (40%) within the required timeframe (14 years) according to National and State guidelines. Management options were based on a default catch share arrangement of 60% commercial and 40% recreational (including charter) with an additional commercial allocation for Indigenous Fishing Permits. These catch shares reflect the last 15 years of history in the fishery and will be recommended for adoption as an interim catch share arrangement.

  Members provided advice on the proposed scenarios and management action as follows:

  • Members were advised that due to significant underutilisation of the current total allowable commercial catch, reductions in quota value by more than 50% would be needed to achieve any level of harvest reduction.
  • There was general support for regional/seasonal closures of 12 weeks each in the northern (Sep-Nov) and southern (between Jan-May) areas of the fishery as one management tool, noting that this would impact all fishers who target Spanish mackerel during these periods and provides some protection to spawning/other aggregations.
  • There was mixed support for a reduction to the recreational possession limit to one and a boat limit of two (with two or more recreational fishers onboard), with some members stating that any reduction to recreational limits must be commensurate with a reduction to the commercial sector. The working group were advised that boat ramp and recreational survey data indicates that, of those recreational fishers who landed Spanish mackerel, approximately 70% land one Spanish mackerel per trip. This suggests that possession limit changes would need to be considered in combination with other management measures affecting recreational harvest, including seasonal closures.
  • The working group discussed a reduction to the current total allowable commercial catch limit of between 75 and 90%, combined with seasonal closures and a reduction to the recreational possession limit from 3 to 1 per fisher (max 2 per boat), aimed to ensure rebuilding of the stock.
  • Members were concerned that any reduction to current catch levels will have significant impacts on all fishing sectors, notably the 20-25 SM licences that are responsible for approximately 50% of commercial harvest in the fishery. A number of members requested that Fisheries Queensland include, as part of any management action, options to alleviate the impacts of any significant reductions.
  • Members recognised the need for an equitable approach that adequately reduces fishing mortality from all sectors.
  • The working group acknowledged that the current 75cm minimum legal size (MLS) is below the size at 50% maturity and doesn’t protect all individuals before their first chance to breed, but did not support an increase in MLS due to concerns with post release mortality, shark depredation and disproportionate impacts on the southern area of the fishery in Queensland.
  • The working group discussed whether management action for commercial fishers could be stepped across two years to allow industry a transitional period, provided rebuilding targets can be met. There was split support for this, noting other stakeholders would expect commensurate and concurrent change across all sectors. It was recognised that a staged approach may also extend rebuilding timeframes.
  • Members noted concerns about the possible impacts of quota reductions on the value of commercial fishing endorsements, equipment and quota prices, potentially leading to a reduction in capital for many fishers and difficulties in accessing quota.
  • The working group also emphasised the importance of working with New South Wales to progress commensurate management interventions in their jurisdiction, to reduce fishing mortality and contribute to the rebuilding of this shared stock.

  The working group also noted that there are important environmental influences that affect recruitment. This is currently the subject of an FRDC-funded research priority that will investigate environmental influences on recruitment to address uncertainties in the assessment and management of the east coast Spanish mackerel fishery.

  Fisheries Queensland presented an overview of harvest strategies as a framework for setting pre-determined management actions to achieve fishery objectives, noting that rebuilding objectives must include timeframes to rebuild the stock to an agreed target. Members were provided an overview of the harvest strategy development process and provided advice on a set of long-term fishery objectives to guide the management of the fishery under a harvest strategy.

  Members were asked to provide advice on appropriate rebuilding timeframes and reference points for east coast Spanish mackerel. The working group noted that the management actions discussed to rebuild the stock have been calculated based on rebuilding to the default rebuilding target of 40% biomass, with a rebuilding timeframe of 7-14 years. The working group recommended adopting the default rebuilding target and timeframe, noting it offers sufficient time to monitor recovery, provides a smoother transition from rebuilding to harvest strategy harvest control rules and aligns with guidelines based on the species’ biology.

  Fisheries Queensland advised that if the stock does not show recovery, or biomass declines within expected rebuilding timeframes, additional management action would be required and may include a full closure of the fishery. Some members suggested that, following sufficient time to allow the positive effects of management action to manifest, if the biomass declined below 17% when stock rebuilding was expected, then a full fishery closure should be implemented. There was general support that the standard limit reference point of 20% of unfished biomass (consistent with the Sustainable Fisheries Strategy 2017-2027) would apply once the fishery rebuilds to 40% of unfished biomass. Members noted concerns that environmental influences and impacts from other fisheries should be considered if stock rebuilding is not occurring as expected.

  Members strongly advocated for improved monitoring (across all sectors), including the collection of fisheries independent data, using readily available and new technologies. Members noted the availability of apps such as "Eye on the Reef", "Qld eCatch" and others to report catches and enable the synthesis of valuable fisheries-related data. The working group noted other measures to reduce the impacts on Spanish mackerel could be promoted, such as through fisher behavioural change programs and developing best practice fishing and handling practices.

  The next meeting, to review and discuss stock rebuilding management options and a draft harvest strategy prior to broader public consultation, will be held in March 2022. Fisheries Queensland are working towards implementation of management action to rebuild the stock coming into effect on 1 July 2022.

• 21-22 March 2022

  The East Coast Spanish Mackerel Working Group met on 21-22 March 2022 in Cairns. The purpose of the working group meeting was to discuss a draft east coast Spanish mackerel management discussion paper and draft harvest strategy prior to public consultation in March / April 2022.

  Fisheries Queensland provided a broad update including progress implementing the Queensland Sustainable Fisheries Strategy 2017ꟷ2027 (SFS), working group membership gaps and continual improvements to the ‘eCatch’ commercial fishing reporting application.

  In the members update, commercial and recreational members cited concerns primarily due to their uncertainty and distrust in the science and latest stock assessment and potential future management based on this science. Commercial and recreational members also stated that fishers are observing large aggregations of fish on the water that are not fished or not available to fishing, and that the stock assessment does not reflect this apparent abundance. Commercial members also noted concerns for food security and significant social and economic impacts of the management actions proposed.

  Recreational and commercial members expressed frustration with the level of communication from Fisheries Queensland since the last meeting regarding questions on the stock assessment inputs and methodology.

  The Indigenous fishing representative noted that traditional owners are currently working with Fisheries Queensland to help develop Indigenous commercial fishing in northern Queensland and are cognisant of the discussions regarding Spanish mackerel.

  The Great Barrier Reef Marine Park Authority (GBRMPA) member acknowledged commercial and recreational members’ on-water knowledge and experience, while also considering the latest stock assessment to be robust, data-rich and in line with national and international best practice. The GBRMPA member explained that other scientific information has indicated a decline in the east coast Spanish mackerel stock for some time, and supported timely implementation of management to rebuild the stock in a reasonable timeframe. Acknowledging the social and economic impacts this management action would have on industry, the GBRMPA member noted that impacts of continuing stock decline would be more severe.

  The conservation member was supportive of the science and timely implementation of management action, noting that rebuilding the stock will improve environmental, social and economic concerns in the long term to achieve triple bottom line objectives.

  The New South Wales Department of Primary Industries (NSW DPI) observer noted that Spanish mackerel is an important component of NSW fisheries, advising that they are looking more broadly at management of key species and are watching this process with interest.

  Fisheries Queensland presented biological information on Spanish mackerel collected through the fisheries monitoring program, which provides key inputs into the stock assessment. The biological data indicated variability in recruitment and potential linkages between strong recruitment events and environmental influences. Members noted that further research on environmental drivers for east coast Spanish mackerel is a key focus of a current Fisheries Research and Development Corporation (FRDC) project application, and members will be kept up to date on research projects as they progress. Fisheries Queensland emphasised that continuing the collection of biological information is critical for estimating annual length/age structures, recruitment, growth and mortality as key inputs for monitoring stock recovery. Members also emphasised the importance of fishery independent data collection if proposed management intervention is implemented.

  Fisheries Queensland presented an overview of the consultation process for harvest strategy, discussion paper and management option development and implementation, including (and subject to Government consideration):

  • April 2022 – draft harvest strategy and discussion paper released online for public consultation for 28 days.
  • May 2022 – fourth working group meeting held to consider the results of public consultation and provide final feedback on the draft harvest strategy and rebuilding options.
  • May 2022 – Sustainable Fisheries Expert Panel review and provide advice on the draft harvest strategy and rebuilding options.
  • May 2022 – Fisheries Queensland finalise rebuilding options and the harvest strategy for Government consideration and approval.
  • June 2022 – East coast Spanish mackerel fishery harvest strategy released, and stakeholders advised of decisions on management actions to rebuild stock.
  • July 2022 – East coast Spanish mackerel fishery harvest strategy and rebuilding action to take effect from 1 July 2022.

  Recreational and commercial members indicated concerns regarding the compressed timeframe, questioning if a harvest strategy needs to be developed and implemented alongside any urgent management action. Fisheries Queensland clarified that the harvest strategy is necessary as it sets the framework for rebuilding as well as the long-term management of the fishery, including objectives, reference points, decision rules, rebuilding timeframes and review criteria.

  Fisheries Queensland then presented a draft discussion paper which included the reasons for consultation and rebuilding, rebuilding policy information, background information on the fishery, current management arrangements, options to rebuild the stock and impact alleviation options. Working group members provided advice and input on the discussion paper for consideration by Fisheries Queensland (noting the working group is not a decision-making body). Most members did not endorse the discussion paper, noting reservations regarding the science and stock assessment results and, subsequently, their ability to communicate rebuilding options and impacts to other stakeholders. The Indigenous fishing member, one recreational member, the conservation member and the GBRMPA member did endorse the discussion paper to seek public feedback on the future management of the fishery.

  The working group, in noting the influence that NSW catch has on proposed management measures in Queensland (including the TACC), reiterated the importance of working with NSW to discuss and progress commensurate management arrangements to contribute to the rebuilding of this shared stock.

  Fisheries Queensland presented the draft east coast Spanish mackerel fishery harvest strategy, which included primary fishery objectives to first rebuild the stock to a level that achieves maximum sustainable yield (40% spawning biomass), then progress to the longer-term objective to return the stock to a level that maximises economic yield (60% spawning biomass). Members noted the proposed sectoral catch shares of 60% commercial and 40% recreational (including charter), and one recreational member noted they do not support defining sectoral catch share allocations generally. Members discussed and provided advice on the draft harvest strategy decision rules, which are designed to rebuild the stock to sustainable levels and maintain sectoral catch shares by adjusting the TACC and recreational in-possession limits. Members noted the draft harvest strategy components on monitoring social and economic performance, data collection validation and assessment and information on research priorities.

  Members discussed that that the next stock assessment is proposed to take place after 1 July 2025, which will provide an indication of stock recovery given sufficient time for management changes to have a positive impact. Fisheries Queensland noted that the proposed management measures should deliver stock recovery in the proposed time frame.

  Members held concerns regarding a draft decision rule relating to closing and reopening the fishery if recovery is not achieved. Fisheries Queensland will review this decision rule before the draft harvest strategy is released for public consultation, noting commercial and recreational members concerns regarding stock assessment outputs and rebuilding projections.

  Most working group members endorsed the draft harvest strategy for public consultation on the proviso that members’ advice on readability and decision rules are considered. A commercial member and a recreational member did not endorse the harvest strategy for public consultation.

  Some members requested a more balanced consideration of ecological, social and economic objectives in rebuilding the stock. Commercial and recreational members suggested that management action could be delayed, which would provide time for industry to adjust and allow additional data to be collected to address uncertainties in the stock assessment.

  Fisheries Queensland presented and discussed results and methodology of Queensland’s recreational monitoring programs, including the boat ramp survey program and state-wide recreational fishing surveys. Members noted that all information and data from the programs are available on the Department of Agriculture and Fisheries website. Commercial members held concerns over the representativeness of the surveys, suggesting that the majority of ‘skilled fishers’ do not participate. Fisheries Queensland, GBRMPA and recreational members noted that the surveys have very high participation rates (>95%), produce reliable estimates and are best practice. Members also discussed options for improving recreational data, including reporting through the recreational fishing app and mandatory reporting requirements in line with measures taken by other jurisdictions for at-risk species.

  In other business:

  • The GBRMPA member advised that sea surface temperatures remain above average across most of the marine park and are expected to remain so until the end of March 2022. Weather patterns over the next few weeks are being monitored, and they will be critical in determining the overall extent and severity of coral bleaching.
  • The commercial sector noted concern around changes in recreational catch methodology in stock assessments over time – particularly between the 2016 and 2020 stock assessments – and sought further clarification from the stock assessment authors regarding these changes.

  The next meeting will be held in May 2022 to review feedback from public consultation results and seek final feedback on the draft harvest strategy and rebuilding options. Fisheries Queensland are working towards implementation of management action to rebuild the stock coming into effect on 1 July 2022.

• 18 April 2024

  The Spanish mackerel fisheries working group met on 18 April 2024 via teleconference. This was the first meeting held since members were reappointed in late 2023. The purpose of the meeting was to discuss and recommend nominations for the independent scientist appointment to the stock assessment project team and other roles.

  The working group noted no conflicts of interest and raised no concerns regarding the terms of reference to which members agreed to comply with when expressing an interest in joining the working group.

  Working group members provided an introduction and a general update on their fishing operations.

  The commercial sector mentioned difficulty in accessing quota due to lease prices and quota market dynamics, and the impact this has had including reducing participation in the fishery, ability to harvest the total allowable commercial catch and impacts on supply, competition and price at market. The commercial sector also raised concerns regarding management changes benefitting a small minority of quota owners at the expense of fishery participation and seafood consumers. This has forced many commercial fishers out or making Spanish mackerel harvest a supplementary (secondary) income source.

  The fishery sector members raised the lack of acceptance of the stock assessment results across sectors and resultant shifts in recreational fishing effort to other stocks (such as reef line).

  The recreational fishing sector shared observations on good numbers of Spanish mackerel, with strong recruitment noted in the estuaries. A strong interest in the upcoming stock assessment results was expressed by all members. The recreational sector particularly noted this interest is further spurred on by reforms around saddletail and crimson snapper in the current recreational fishing discussion paper.

  Members noted Fisheries Queensland have refreshed the working groups and progress on the Sustainable Fisheries Strategy. Fisheries Queensland provided a general overview on developments in the future fishing structural adjustment scheme. Members were informed of the release of the discussion papers on commercial crab (C1) reforms, proposed by parts of industry, and the recreational fishing discussion paper. Members were encouraged to provide feedback by 9 May 2024. The importance of reappointing a modified east coast inshore fin fish fishery working group was emphasised by members.

  The appointment of the stock assessment project team was discussed, and in particular, the priority and agenda item for appointment of an independent scientist to the project team. The current list of potential candidates was reviewed, and all candidates were determined to have the professional competency to fill the independent scientist role. Members nominated an additional scientist for consideration. All members strongly supported the additional scientist nominated with a secondary preference identified based on the candidates' values and skillset with bilateral support for this preference provided.

  Fisheries Queensland highlighted that the project team-appointed independent scientist would not likely be able to also be the independent reviewer of the stock assessment, depending on the nature of the review and any duplication of roles or conflicts of interest. This was acknowledged and reiterated by members noting that equality of access to data for the independent review is an important consideration. Payment of the appointed scientist was noted, and the implications this had for both attracting the best person and true independence, with these arrangements to be further considered and reported back to members. The importance of transparency to facilitate acceptance for the stock assessment was emphasised, and the burden of this not to be borne by the independent scientist alone, with representation required from all relevant sectors on the project team. Working group members were requested to provide any additional nominations and their endorsement for these by no later than the morning of 29 April 2024.

  Appointment of additional members to the project team from fisheries sectors was also discussed. Members generally noted importance of having both a commercial and recreational representative appointed to the team, with depth of knowledge of the stock, appreciation for the stock assessment science and ability to garner broad views from the respective sectors.

  Working group members:

  • Chair: Susan Porchun (Biosecurity Queensland)
  • Commercial Fishers: Chris Hain, Mathew Calder, Peter Stevens, Richard Gilmore
  • Recreational Fishers: Bill Bowtell, Jason Bradford, Rob Wand
  • Other: David Leotta
  • Charter Fishing: Greg Sims
  • Great Barrier Reef Marine Park Authority: Darren Cameron
  • Fisheries Queensland: Michelle Wenner (Principal Fisheries Manager), Chad Lunow (Fishery Manager), Benjamin Shiels (QBFP)

  Apologies:

  • Greg Sims
  • David Leotta
  • Mathew Calder

  Observers:

  • Alise Fox (Senior Fisheries Scientist, Stock Assessment)
  • NSW observer (TBA)