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Commonwealth of Australia

Environment Protection and Biodiversity Conservation Act 1999

Section 269A

Acts Interpretation Act 1901 (Cth)

Section 33

Instrument revoking and making a recovery plan

 

I, Greg Hunt, Minister for the Environment, according to:

1.    section 33(3) of the Acts Interpretation Act 1901 (Cth), revoke the recovery plan for Carcharias taurus – Grey Nurse Shark, entitled “Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia”; and
2.    section 269A(2) of the Environment Protection and Biodiversity Conservation Act 1999 (Cth), make a recovery plan for Carcharias taurus – Grey Nurse Shark, entitled “Recovery Plan for the Grey Nurse Shark (Carcharias taurus) 2014”.

The revocation of the recovery plan specified in paragraph (a) will take effect the day after the plan specified in paragraph (b) is registered on the Federal Register of Legislative Instruments.

The recovery plan specified in paragraph (b) will come into force on the day after the plan is registered on the Federal Register of Legislative Instruments.

 

Dated this      31st   day of       July     2014

 

Greg Hunt

 

 

Greg Hunt

Minister for the Environment

 

 

 

 

Recovery Plan for the Grey Nurse Shark (Carcharias taurus)

2014

 

 

 

 

The issues paper linked to this recovery plan is obtainable from: www.environment.gov.au/resource/recovery-plan-grey-nurse-shark-carcharias-taurus

© Commonwealth of Australia 2014

This work is copyright. You may download, display, print and reproduce this material in unaltered form only (retaining this notice) for your personal, non-commercial use or use within your organisation. Apart from any use as permitted under the Copyright Act 1968, all other rights are reserved. Requests and enquiries concerning reproduction and rights should be addressed to Department of the Environment, Public Affairs, GPO Box 787 Canberra ACT 2601 or email public.affairs@environment.gov.au.

Disclaimer While reasonable efforts have been made to ensure that the contents of this publication are factually correct, the Commonwealth does not accept responsibility for the accuracy or completeness of the contents, and shall not be liable for any loss or damage that may be occasioned directly or indirectly through the use of, or reliance on, the contents of this publication.

 

Contents

List of tables

Abbreviations

1 Summary

2 Background

3 Conservation status

4 Reasons for listing under the EPBC Act

5 Evaluation of performance of the previous Recovery Plan for the Grey Nurse Shark

6 Threats

7 Populations that require protective measures

8 Objectives

9 Actions to achieve the specific objectives

10 Current management practices

11 Effects on other native species or ecological communities

12 Biodiversity benefits

13 Social and economic considerations

14 Duration and cost of the recovery process

15 Affected interests

16 Efficient and effective use of resources

17 Consultation

18 Organisations/persons involved in evaluating the performance of the plan

19 References

20  Appendices

List of tables

Table 1. Known key aggregation sites critical to the survival of the grey nurse shark in Australian waters

Table 2:  Summary of the status of the actions identified in the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002)

Table 3:  Organisations represented on the then National Shark Recovery Group (NSRG)

 

 

 

 

Abbreviations

 

AFMA Australian Fisheries Management Authority, Commonwealth

BIA Biologically Important Area

CITES Convention on International Trade in Endangered Species of Wild Fauna and Flora

CSIRO Commonwealth Scientific and Industrial Research Organisation

DoA Department of Agriculture, Commonwealth

DoE Department of the Environment, Commonwealth

EPBC Act Environment Protection and Biodiversity Conservation Act 1999

HSI Humane Society International

IUCN International Union for Conservation of Nature

MNES Matters of national environmental significance

NSRG National Shark Recovery Group

NSW DPI New South Wales Department of Primary Industries

SPRAT Species Profile and Threats Database

TRAFFIC Trade Records Analysis of Flora and Fauna in Commerce

TSSC Threatened Species Scientific Committee

 

1 Summary

This document constitutes the Australian National Recovery Plan for the Grey Nurse Shark (Carcharias taurus).

The plan considers the conservation requirements of the species across its range, identifies the actions to be taken to ensure the species’ long-term viability in nature and indicates the parties that will undertake those actions. This plan replaces the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia and should be read in conjunction with the Issues Paper for the Grey Nurse Shark.

A review of the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia was finalised in January 2009. The review noted that since 2002, all but one of the 19 key aggregation sites listed as ‘habitat critical to the survival of the species’ in the recovery plan had been given some level of protection. The review found it was not possible to determine if the east coast population had shown any sign of recovery since the implementation of the plan and identified an ongoing need to maintain a recovery plan for the species. The review also found no reason to alter the status of the east coast population from critically endangered, or the west coast population from vulnerable, under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act). The review concluded that a new recovery plan should be developed to remove the completed actions and include new conservation priorities.

In addition to the grey nurse shark listing under Commonwealth legislation, the species is protected in the coastal waters of Tasmania, South Australia, Victoria and Western Australia, and protected in the coastal waters of New South Wales and Queensland with exemptions or a defence to prosecution for shark control programs for bather protection (e.g. beach meshing and/or drumlining).

The principal threats and likely contributors to the lack of grey nurse shark recovery in Australia are mortality resulting from incidental (accidental and/or illegal) capture by commercial and recreational fishers and from shark control activities. Other potential threats to the species include impacts from ecotourism, collection for public aquaria, pollution and disease and ecosystem effects as a result of habitat modification and climate change.

This recovery plan sets out the research and management actions necessary to stop the decline of, and support the recovery of, the grey nurse shark in Australian waters.

The overarching objective of this recovery plan is to assist the recovery of the grey nurse shark in the wild, throughout its range in Australian waters, with a view to:

• improving the population status, leading to future removal of the grey nurse shark from the threatened species list of the EPBC Act

• ensuring that anthropogenic activities do not hinder the recovery of the grey nurse shark in the near future, or impact on the long term conservation status of the species.

An accompanying issues paper has also been developed to provide background information on the biology, population status and threats to the grey nurse shark. Both the issues paper and the recovery plan can be found at: www.environment.gov.au/resource/recovery-plan-grey-nurse-shark-carcharias-taurus

 

2 Background

2.1 Species description and distribution in Australian waters

The grey nurse shark (Carcharias taurus) is one of three species belonging to the family Odontaspididae. It is known as the sand tiger shark in the United States of America, and the spotted ragged-tooth shark in South Africa. The grey nurse shark is reported to have separate and distinct populations and is found mostly in inshore regions in cool temperate to sub-tropical waters (Compagno, 1984; Last & Stevens, 2009). Significant declines have occurred throughout its range, resulting in grey nurse shark populations now being restricted to the east coasts of North and South America, South Africa and the east and west coasts of Australia (Musick et al., 1993; Lucifora et al., 2002; Otway et al., 2004).

The grey nurse shark is considered to have slow growth, be long-lived, present late onset sexual maturity and have low fecundity. While the average life span of the grey nurse shark in the wild is unknown, studies in captivity in South Africa indicate they may live up to 35 years (Smith et al., 1998).

In Australia, the grey nurse shark has an inshore coastal distribution primarily in sub-tropical to cool temperate waters on the continental shelf. There are two separate, genetically distinct grey nurse shark populations in Australian waters—one on the east coast and one on the west coast (Stow et al., 2006). Grey nurse sharks have been caught only rarely in the Arafura Sea and have not been identified in Tasmanian waters (Read & Ward, 1986; Last & Stevens, 2009). The east coast population covers a range of approximately 2700 km and extends from the Capricornia coast (central Queensland) to Narooma in southern New South Wales (Otway et al., 2003; Bansemer, 2009; Otway et al., 2009). Sightings data from the New South Wales Department of Primary Industries (NSW DPI) includes sightings as far south as the NSW/Victoria border (NSW DPI, 2002). The range of the west coast population is less well known, however records indicate that the species is widely distributed from the North West Shelf (including coastal waters in Exmouth Gulf), south to coastal waters near Cocklebiddy in the Great Australian Bight (McAuley et al., 2002; Cavanagh et al., 2003), covering a range of approximately 2900 km.

2.2 Population trends

Prior to 1998, limited data describing the spatial and temporal patterns of abundance of the grey nurse shark along the east coast of Australia were available (Pepperell, 1992; Reid & Krogh, 1992; Krogh, 1994; Dudley, 1997). In the 1960s, the grey nurse shark was anecdotally known to aggregate at approximately 60 sites along the east coast of Australia, with at least 30 individuals observed at each site (Cropp, 1964). However, later surveys (1999, 2000 and 2003) conducted by NSW DPI highlighted that the grey nurse shark was absent from many of the sites occupied during the 1960s and, at the time of these surveys, there were only a few sites where the species could be reliably observed (Otway et al., 2003; Bennett & Bansemer, 2004). Similar declines were identified in both the bather protection programs and game fishing records (Pepperell, 1992), suggesting the grey nurse shark on the east coast had experienced a dramatic decline in population numbers over the latter half of the 20th century.

Recent research has obtained relatively robust estimates for the east coast grey nurse shark population. All estimates put the total east coast population above 1131 individuals, with the highest estimate being 2142 individuals (Bansemer, 2009; Bansemer & Bennett, 2010; Cardno Ecology Lab, 2010). An estimate of approximately 1365 individual grey nurse sharks is considered the most robust estimate currently available for the east coast population (Cardno Ecology Lab, 2010).

Population trends in the west coast population are less well known and estimates of population size have not been made. The primary source of anthropogenic mortality has been from incidental capture by the demersal gillnet fishery that operates between Steep Point, Western Australia and the South Australian border (Chidlow et al., 2006). Analysis of data from this fishery (up to 1997) indicates that the grey nurse shark was relatively abundant in temperate Western Australian waters in the mid to late 1990s (Cavanagh et al., 2003). However, after listing of the species in 1997, catch-rate reporting on this species effectively stopped, making more recent assessments of population size and trends difficult (Chidlow et al., 2006).

2.3 Aggregation sites – habitat critical to the survival of the grey nurse shark

Grey nurse sharks tend to be found in groups at specific locations (Otway et al., 2003). These locations are known as aggregation sites. Grey nurse sharks are often observed aggregating around inshore rocky reefs or islands. At these locations they are typically found near the sea bed (at depths of 10–40 m) in deep sandy or gravel filled gutters, or in rocky caves (Otway & Burke, 2004; Dicken, 2006; Last & Stevens, 2009). Otway et al., (2003) defined ‘key aggregation sites’ as being locations where five or more grey nurse sharks were consistently found throughout the year and recommended that these sites be considered habitat critical to the survival of the species. For the purposes of this recovery plan, the Otway et al., (2003) definition of key aggregation sites has been used and, as in the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002), these sites have been considered to be the areas of habitat critical to the survival of the species.

Confirmed key aggregation sites in Australian waters are summarised in Table 1. There are currently four sites identified in Queensland waters, 13 sites located in New South Wales waters and two in Commonwealth waters.

There are also a number of potential key aggregation sites identified in Western Australian waters and potentially further sites in New South Wales waters. These sites require further investigation to confirm if they meet the requirements of five or more grey nurse sharks being consistently found there throughout the year.

Table 1. Known key aggregation sites critical to the survival of the grey nurse shark in Australian waters

 

3 Conservation status

The grey nurse shark has been protected in New South Wales waters since 1984 and nationally since 1996. Since October 2001, grey nurse sharks have been listed as two separate populations under the EPBC Act.

The grey nurse shark is currently listed as:

 

4 Reasons for listing under the EPBC Act

The grey nurse shark was listed as vulnerable under the EPBC Act in August 2000. This listing was based on declining population trends, the life history characteristics of the species, limited knowledge of their ecology and abundance, and the fact that the species was still under pressure from some sectors of the Australian commercial and recreational fishing industries.

In October 2001, the grey nurse shark was listed as two separate populations under the EPBC Act. Given the serious decline in numbers in the east coast population of the grey nurse shark, this population is now listed as critically endangered. The size of the west coast population is unknown but considering the species life history characteristics and continuing incidental impacts from fishing, this population remains listed as vulnerable under the Western Australian Wildlife Conservation Act 1950 and the EPBC Act.

 

5 Evaluation of performance of the previous Recovery Plan for the Grey Nurse Shark

A recovery plan for the grey nurse shark was made in June 2002 (EA, 2002). Under the EPBC Act (section 279(2)), recovery plans must be reviewed every five years.

The purpose of the review is to summarise the actions undertaken against those specified in the recovery plan, and to assess whether:

• there is an ongoing need for a recovery plan under the EPBC Act

• the recovery plan needs to be varied to ensure further protection for the species.

A review of the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002) was completed in January 2009 (DEWHA, 2009). This review found that progress had been made on most of the 40 actions listed in the recovery plan. Of the 40 actions, 12 had been completed, 25 had been partially completed and were considered to be ongoing, and three had little or no action recorded against them. A summary of the status of the actions identified in the 2002 recovery plan is provided at Appendix 1.

Importantly, the review noted that since 2002, all but one of the 19 key aggregation sites listed as ‘habitat critical to the survival of the species’ in the 2002 recovery plan had been given some level of protection (DEWHA, 2009). This included: the declaration of critical habitats, marine parks and fishing closures in New South Wales; grey nurse shark protection areas and marine national park zones in Queensland; and marine reserves in Commonwealth waters.

These key aggregation sites have not been placed on the EPBC Act Register of Critical Habitat. Seventeen of these sites are in state jurisdiction and are therefore outside the scope of the critical habitat provisions of the EPBC Act. The remaining two sites, Pimpernel Rock and the Cod Grounds, are within Commonwealth areas and are protected as Commonwealth marine reserves, therefore further protection would not be gained by placing them on the Critical Habitat Register.

Despite progress against the listed actions, the 2009 review:

• concluded it was not possible to determine if the east coast population of the grey nurse shark had shown any sign of recovery

• highlighted that since the introduction of the original recovery plan there had only been a small number of official reports of incidental capture of grey nurse sharks from the commercial and recreational fishing sectors and that this was likely to be an underestimate of the actual take

• highlighted that the New South Wales and Queensland shark control programs were a significant and ongoing source of mortality for the east coast grey nurse shark population

• found no reason to alter the status of the east coast population from critically endangered or the west coast population from vulnerable

• identified an ongoing need to maintain a recovery plan for the species and recommended that a new recovery plan be developed to remove the completed actions and include new conservation priorities.

This new recovery plan builds on the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002) and was developed by the Department of the Environment (DoE) in consultation with representatives from Australian and state government agencies, commercial and recreational fishers, environmental non-government organisations and research agencies.

 

An accompanying issues paper was also developed to provide detailed background information on the biology, population status and threats to the grey nurse shark, as well as to identify research and management priorities. The Recovery Plan for the Grey Nurse Shark (Carcharias taurus) 2014 should therefore be read in conjunction with the Issues Paper for the Grey Nurse Shark (Carcharias taurus) 2014 (DoE, 2014). The Issues Paper can be downloaded from the department’s website at: www.environment.gov.au/resource/recovery-plan-grey-nurse-shark-carcharias-taurus

6 Threats

Historically (1950s through to the 1970s), the grey nurse shark was fished in eastern Australia for its oil, flesh, skin and fins. Due to its fierce appearance and being mistaken for other sharks that posed a danger to humans, large numbers were also killed by recreational spear fishers and line fishers who targeted the sharks at their aggregation sites (EA, 2002). The protection of grey nurse sharks under state and Commonwealth legislation means that this species can no longer be targeted by fishers.

The principal current threats to the grey nurse shark in Australia are similar to those identified in the 2002 recovery plan. They can be summarised as:

• mortality related to incidental (accidental and/or illegal) capture by commercial and recreational fisheries

• mortality related to shark control activities such as beach meshing or drumlining.

Other potential threats to the species include impacts from ecotourism, collection for public aquaria, pollution and disease and ecosystem effects as a result of habitat modification and climate change—including changes in sea temperature and ocean acidification.

 

7 Populations that require protective measures

Both the Australian east coast population (currently listed as critically endangered under the EPBC Act) and the west coast population (currently listed as vulnerable under the EPBC Act) are covered under this recovery plan.

Differences in genetic structure have been shown to exist between eastern and western populations, inferring limited or zero dispersal between these populations (Stow et al., 2006). The isolation of the Australian grey nurse shark populations has important implications for the conservation management of this species, as natural migration—and therefore replenishment of diminished populations—between the two Australian populations and/or those of other locations is not expected to occur.

 

8 Objectives

The overarching objective of this recovery plan is to assist the recovery of the grey nurse shark in the wild, throughout its range in Australian waters, with a view to:

• improving the population status, leading to future removal of the grey nurse shark from the threatened species list of the EPBC Act

• ensuring that anthropogenic activities do not hinder the recovery of the grey nurse shark in the near future, or impact on the conservation status of the species in the future.

As the east coast population is considered to be critically endangered, this population will be the primary focus of the actions outlined in this plan, with an emphasis placed on monitoring and compliance. Although the proposed actions are still relevant to the west coast population, further information is required to better understand the status of the population and the importance of critical habitat sites to that population.

The specific objectives of this recovery plan are to:

Objective 1:  Develop and apply quantitative monitoring of the population status (distribution and abundance) and potential recovery of the grey nurse shark in Australian waters.

Objective 2:  Quantify and reduce the impact of commercial fishing on the grey nurse shark through incidental (accidental and/or illegal) take, throughout its range.

 

Objective 3:  Quantify and reduce the impact of recreational fishing on the grey nurse shark through incidental (accidental and/or illegal) take, throughout its range.

Objective 4:  Where practicable, minimise the impact of shark control activities on the grey nurse shark.

Objective 5:  Investigate and manage the impact of ecotourism on the grey nurse shark.

Objective 6:  Manage the impact of aquarium collection on the grey nurse shark.

Objective 7:  Improve understanding of the threat of pollution and disease to the grey nurse shark.

Objective 8:  Continue to identify and protect habitat critical to the survival of the grey nurse shark and reduce the impact of threatening processes within these areas.

Objective 9:  Continue to develop and implement research programs to support the conservation of the grey nurse shark.

Objective 10:  Promote community education and awareness in relation to grey nurse shark conservation and management.

9 Actions to achieve the specific objectives

Actions identified for the recovery of the species covered by this plan are described below. Some of the objectives are long term and may not be achieved prior to the scheduled five year review of the recovery plan.

Priorities assigned to actions should be interpreted as follows:

Priority 1: Taking prompt action is necessary in order to mitigate the key threats to the grey nurse shark and also provide valuable information to help identify long-term population trends.

Priority 2: Action would provide a more informed basis for the long-term management and recovery of the grey nurse shark.

Priority 3: Action is desirable, but not critical to the recovery of the grey nurse shark or assessment of trends in that recovery.

Objective 1:  Develop and apply quantitative monitoring of the population status (distribution and abundance) and potential recovery of the grey nurse shark in Australian waters.

 

 

Objective 2:  Quantify and reduce the impact of commercial fishing on the grey nurse shark through incidental (accidental and/or illegal) take, throughout its range.

 

Objective 3:  Quantify and reduce the impact of recreational fishing on the grey nurse shark through incidental (accidental and/or illegal) take, throughout its range.

 

Objective 4:  Where practicable, minimise the impact of shark control activities on the grey nurse shark.

 

Objective 5:  Investigate and manage the impact of ecotourism on the grey nurse shark.

Objective 6:  Manage the impact of aquarium collection on the grey nurse shark.

 

Objective 7:  Improve understanding of the threat of pollution and disease to the grey nurse shark.

Objective 8:  Continue to identify and protect habitat critical to the survival of the grey nurse shark and reduce the impact of threatening processes in these areas.

Objective 9:  Continue to develop and implement research programs to support the conservation of the grey nurse shark.

Objective 10:  Promote community education and awareness in relation to grey nurse shark conservation and management.

 

10 Current management practices

Management practices and measures other than those contained in this plan have been developed and are being implemented through a number of agencies and programs. These include Australian Fisheries Management Authority (AFMA) procedures and protocols, Department of Agriculture (DoA) policies and programs and state government programs.

These measures include the compulsory use of logbooks by commercial fishers to record incidental capture of grey nurse sharks and mechanisms to encourage recreational fishers to report interactions. There are also a number of observer programs in operation designed to provide fisheries-independent measures of grey nurse shark mortality in state and Commonwealth waters.

In July 2012, Senator the Hon. Joe Ludwig, then Minister for Agriculture, Fisheries and Forestry released Australia’s second National Plan of Action for the Conservation and Management of Sharks (Shark-plan 2). Shark-plan 2 outlines how Australia will manage and conserve sharks, and ensure that Australia meets international conservation and management obligations. The plan identifies research and management actions across Australia for the long-term sustainability of shark populations, including actions to help minimise the impacts of fishing on sharks. Shark-plan 2 can be downloaded from the Department of Agriculture website at: www.daff.gov.au/fisheries/environment/sharks/sharkplan2. Shark-plan 2 was developed in conjunction with state, Northern Territory and Australian government agencies, and has been endorsed by the Shark-plan Implementation and Review Committee and the Australian Fisheries Management Forum.

The grey nurse shark is protected under the EPBC Act, and as such, it is an offence to kill, injure, take, trade, keep, or move any individual in Commonwealth waters without a permit. In addition, all listed threatened species are considered matters of national environmental significance (MNES), and any actions that are likely to have a significant impact on a MNES must be referred to the Australian government minister responsible for the environment for assessment and approval.

The environmental performance of Commonwealth, state and Northern Territory managed wild harvest fisheries is assessed under the EPBC Act. The EPBC Act requires that:

• all Commonwealth managed and state wild capture marine fisheries with an export component be assessed to ensure they are being managed in an ecologically sustainable way

• all Commonwealth managed fisheries are assessed to determine the impact of actions taken under a fishery management plan on matters of national environmental significance

• all Commonwealth managed fisheries and any state-managed fisheries that operate in Commonwealth waters must be assessed to determine the impacts of fishing operations on cetaceans, listed threatened species and ecological communities, migratory species, and listed marine species under the EPBC Act.

The assessments consider the impacts of the relevant fishery on target and non-target species and the impacts of fishing activities on the broader marine environment. As a listed threatened species, grey nurse sharks cannot be taken in fisheries in Commonwealth, New South Wales, Queensland or Western Australian waters and interactions must be reported. Interactions with grey nurse sharks, as well as the life status of the animal when it was captured (e.g. whether it is released alive), are considered in the assessment of fisheries operating in Commonwealth waters.

Other relevant management practices include management planning processes for areas which contain breeding and/or aggregation sites for grey nurse sharks and the incorporation of important sites into marine reserves, both at the Commonwealth (e.g. through the marine bioregional planning process) and state levels. Importantly, since 2002, the majority of known key aggregation sites for the grey nurse shark, in both Commonwealth and state waters, have been given some form of protection. Details of protection measures afforded to the grey nurse shark in each jurisdiction are outlined in the issues paper (DoE, 2014). The ongoing management and protection of grey nurse sharks at these sites is critical for the survival of the species.

Shark control activities are undertaken by the Queensland and New South Wales governments to protect bathers from shark attack. These states have mechanisms in place to monitor the impacts of these activities on protected species and, where possible without compromising bather safety, reduce those impacts. Data from the New South Wales program show that 22 grey nurse sharks were caught and killed through the program between July 2002 and July 2013, and eight were released alive following entanglement. In Queensland, 23 grey nurse sharks were caught between 2001 and October 2013. Further details of shark control programs are outlined in the issues paper (DoE, 2014). The actions set out in this recovery plan in regards to shark control activities focus on maximising the useful data the programs can provide on grey nurse shark biology and ecology and minimising the impact of these activities on non-target species without reducing the effectiveness of the programs in maintaining bather safety.

10.1  Marine bioregional plans

Marine bioregional plans have been prepared under section 176 of the EPBC Act for the South-west, North-west, North and Temperate East marine regions of Commonwealth waters around Australia. Each marine bioregional plan describes the conservation values of the region and identifies and characterises the pressures affecting these conservation values. The plans also identify regional priorities and outline strategies to address them. As part of the marine bioregional planning process, the grey nurse shark has been identified as a conservation value of regional priority in both the South-west and Temperate East marine regions. In addition, Schedule 2 of both the South-west Marine Bioregional Plan and the Temperate East Marine Bioregional Plan include guidance for people planning to undertake actions which have the potential to impact on grey nurse sharks within these regions. Further information on marine bioregional planning is available on the department’s website at: www.environment.gov.au/coasts/marineplans/index.html

DoE, as the Australian Government department responsible for administering the EPBC Act, maintains a suite of interactive tools that allow users to search, find and generate reports on matters of national environmental significance, including the grey nurse shark. The conservation values atlas of each marine bioregional plan shows the location and spatial extent of conservation values (where sufficient information exists) and is available at: www.environment.gov.au/coasts/marineplans/cva/index.html. Further information about the grey nurse shark is available on the Species Profile and Threats Database (SPRAT) at: www.environment.gov.au/cgi-bin/sprat/public/sprat.pl. This database includes links to conservation value report cards which were developed to support the information provided in each marine bioregional plan.

As part of the marine bioregional planning process, biologically important areas (BIAs) have been identified for a number of species, including the grey nurse shark. BIAs are areas that are particularly important for the conservation of protected species and where aggregations of individuals display biologically important behaviour such as breeding, foraging, resting or migration. The presence of the observed behaviour is assumed to indicate that the habitat required for the behaviour is also present. BIAs have been identified using expert scientific knowledge about species’ distribution, abundance and behaviour in the region, and BIA maps and descriptions for the grey nurse shark are available in the conservation values atlas: www.environment.gov.au/coasts/marineplans/cva/index.html

10.2 Commonwealth marine reserves

Marine reserves are parts of the ocean that are managed primarily for the conservation of their ecosystems, habitats and the marine life they support. They form the Commonwealth component of Australia’s National Representative System of Marine Protected Areas. This system is comprised of five regional networks of Commonwealth Marine Reserves (South-east; South-west; North-west; North and Temperate east) and the Coral Sea Commonwealth Marine Reserve. Considered together, the Commonwealth marine reserve networks and the Coral Sea reserve protect examples of all of Australia’s different marine ecosystems and habitats. Further information about the Commonwealth Marine Reserve Network is available at: www.environment.gov.au/marinereserves/index.html.

The Commonwealth marine reserves network protects habitat important for protected species, including the grey nurse shark. Many of the Commonwealth marine reserves intersect with BIAs for the grey nurse shark, as identified in the marine bioregional plans. More information is available in the conservation values atlas at: www.environment.gov.au/coasts/marineplans/cva/index.html. In particular, key aggregation sites for the critically endangered east coast population of grey nurse sharks intersect with a number of Commonwealth marine reserves in the Temperate East Commonwealth Marine Reserves Network. Pimpernel Rock is a significant feature of the Solitary Islands Commonwealth Marine Reserve and provides important habitat for the east coast population of the grey nurse shark. Similarly, the Cod Grounds Commonwealth Marine Reserve includes a key aggregation site for the grey nurse shark. In addition, a number of key aggregation sites for grey nurse sharks (e.g. Big Seal Rocks, Little Seal Rocks and Little Broughton Island) occur in state waters adjacent to the Hunter Commonwealth Marine Reserve and therefore, important habitat for this species is likely to extend into this reserve.

 

11 Effects on other native species or ecological communities

Reducing anthropogenic impacts from fisheries activities or encounters with shark protection devices may benefit other threatened marine species, such as other shark species, seabirds and marine mammals.

The creation of protected areas (which may include no take zones) around grey nurse shark key aggregation sites is likely to result in conservation benefits for other threatened or protected species of fish, such as black cod (Epinephelus daemelii), that share similar habitat. The conservation of heavily targeted populations of species such as mulloway (Argyrosomus hololepidotus) and yellowtail kingfish (Seriola lalandi) should improve as a result of greater protection at grey nurse shark key aggregation sites (Silberschneider & Gray, 2005). The consequences for other native species, should grey nurse shark numbers increase substantially as a result of this plan, are unknown.

 

12 Biodiversity benefits

Given that this recovery plan focuses on removing threats from grey nurse shark habitats, it is also likely to have positive implications for a range of non-target native species that occur within the same habitats.

13 Social and economic considerations

13.1 Commercial and recreational fishing

Grey nurse sharks have been fished throughout their range in the past and, although there is no current legal directed catch of grey nurse sharks, incidental catch remains a major threat to the species. In particular, trap and line fishers are most likely to come in direct contact with grey nurse sharks. The species is also taken in bottom-set gillnets and trawls. The actions outlined in this recovery plan in relation to commercial fishing focus on improving reporting mechanisms for incidental take and other interactions with grey nurse sharks, including potentially an increase in observer coverage. Implementation of these actions is expected to have a minimal to moderate degree of economic impact on commercial fisheries.

Although recreational fishers have generally been supportive of measures designed to ensure their sport is sustainable, recreational line fishing is still considered to be a major threat to the grey nurse shark. The actions outlined in this recovery plan focus on ensuring compliance with reporting requirements and ensuring reporting mechanisms are in place to adequately assess the impact of recreational fishing on this species. Implementation of these actions will have minimal economic impact on recreational fishers; however, changes in gear types may become necessary. Regular contact and consultation with fishers will be a key strategy in encouraging awareness, support and involvement in the recovery effort.

13.2 Ecotourism

Grey nurse sharks are of economic value for ecotourism such as scuba diving, snorkelling and viewing through glass bottom boats. Grey nurse shark ecotourism is a relatively recent but rapidly expanding industry that is likely to continue to spread to new centres of grey nurse shark abundance and has the potential to increase coastal community income significantly.

Efforts to minimise degradation of grey nurse shark key aggregation areas will have important socio-economic benefits by protecting the aesthetic values of these areas and enhancing recreation and tourism opportunities. However, in some cases, public access to some key areas may need to be controlled, for example through limits on diver numbers or number of boats. Any such restrictions would need to be developed in consultation with the dive industry.

The involvement of dive groups and aquaria in recovery actions, such as education programs and survey work, requires an in-kind contribution of time and potentially some costs.

13.3 Habitat modification/degradation

Habitat degradation (e.g. through coastal development, pollution) also threatens this species and may largely exclude it from areas, perhaps traditionally utilised for feeding or as nurseries, where it was historically much more abundant. As near-coast areas are often a preferred habitat, grey nurse shark populations could be adversely affected by coastal habitat degradation and anthropogenic activities in these regions. As more key aggregation sites are identified there is potential for developments to be restricted under the EPBC Act development assessment and approval processes.

14 Duration and cost of the recovery process

It is anticipated that the recovery process will not be achieved prior to the scheduled five year review of the recovery plan. Therefore, a recovery plan for the grey nurse shark will remain in place until such time that the Australian population of the grey nurse shark has improved to the point that the population no longer meets threatened species status under the EPBC Act.

The cost of implementation of this plan should be incorporated into the core business expenditure of the affected organisations and through additional funds obtained for the explicit purpose of implementing this recovery plan. It is expected that state and Commonwealth agencies will use this plan to prioritise actions to protect the species and enhance its recovery, and that projects will be undertaken according to agency priorities and available resources. Actions which cross jurisdictional boundaries may be funded jointly on agreement by relevant parties.

 

15 Affected interests

Organisations likely to be affected by the actions proposed in this plan include government agencies (Commonwealth and state), particularly those involved with environmental and fisheries concerns; commercial and recreational fishers; local Indigenous communities; researchers; tourism operators and scuba diving operators/clubs; conservation groups; wildlife interest groups; aquarium managers and proponents of coastal development in the vicinity of important habitat areas. This list, however, should not be considered exhaustive, as there may be other interest groups that would like to be included in the future or need to be considered when specialised tasks are required in the recovery of the grey nurse shark.

 

16 Efficient and effective use of resources

In order to maximise the conservation outcomes and cost effectiveness of this plan, the actions proposed complement those of other threatened species recovery plans, such as the white shark recovery plan, and the threat abatement plan for the impacts of marine debris on vertebrate life—which identifies actions to minimise the impacts to marine fauna from marine debris.

 

17 Consultation

The Recovery Plan for the Grey Nurse Shark (Carcharias taurus) 2014 has been developed through extensive consultation with a broad range of stakeholders.

The review of the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002) was completed in January 2009, with the assistance of the then National Shark Recovery Group (NSRG). In February 2009, the review was completed by the department and tabled at the 38th meeting of the Threatened Species Scientific Committee (TSSC)—established under the EPBC Act—prior to being forwarded to the then Minister for Environment Protection, Heritage and the Arts in November 2009.

The NSRG comprised representatives from relevant Australian Government agencies, all states and the Northern Territory, key stakeholder groups including the Humane Society International and TRAFFIC, commercial and recreational fishing sectors, the CSIRO and the Australian Institute of Marine Science (refer to Appendix 2 for a full list of NSRG representatives).

The review concluded that while a number of the actions in the original recovery plan had been completed, there still remains an ongoing need to maintain a recovery plan for grey nurse sharks to promote recovery of the species. The review recommended that the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia be varied to remove completed actions and include new conservation priorities. Following endorsement by the TSSC to prepare a revised grey nurse shark recovery plan, a stakeholder workshop was held in November 2009 with members of the NSRG and selected shark experts, to develop a new recovery plan for the grey nurse shark. The revised draft recovery plan was presented at the 44th meeting of the TSSC in August 2010. Following detailed consultation with stakeholders and the TSSC, the plan was re-drafted in liaison with Commonwealth and state government agencies primarily responsible for implementing the actions.

The 2013 Draft Recovery Plan for the Grey Nurse Shark (Carcharias taurus) was endorsed at the 54th TSSC meeting in August 2013 and released for public comment by the then Minister for Sustainability, Environment, Water, Population and Communities, for a period of three months. Comments received were considered and minor changes incorporated into the recovery plan. The TSSC endorsed the recovery plan as final and recommendended it to the Minister at the 55th TSSC meeting in March 2014.

 

18 Organisations/persons involved in evaluating the performance of the plan

This plan should be reviewed no later than five years from when it was endorsed and made publicly available.

The review will determine the performance of the plan and assess:

• whether the plan continues unchanged; is varied to remove completed actions; or varied to include new conservation priorities

• whether a recovery plan is no longer necessary for the species as either conservation advice will suffice; or the species is removed from the threatened species list.

As part of this review, the listing status of the species will be assessed against the EPBC Act species listing criteria.

The review will be coordinated by the Department of the Environment in association with relevant Australian Government and state agencies and key stakeholder groups, such as the commercial and recreational fishing sectors, non-government organisations, tourism operators, aquarium operators and scientific research organisations.

Key stakeholders who may be involved in the review of the performance of the Recovery Plan for the Grey Nurse Shark (Carcharias taurus) 2014, including organisations likely to be affected by the actions proposed in this plan are:

Australian Government

Australian Fisheries Management Authority

Australian Institute of Marine Science

CSIRO

Department of Agriculture

Department of Industry

Department of the Environment

Great Barrier Reef Marine Park Authority

Indigenous Land Corporation

Industry and non-government organisations

Australasian Regional Association of Zoological Parks and Aquaria

Aquarium industry

Commercial fishers and associations

Conservation groups

Indigenous Land Councils and communities

Local communities

Nature-based tourism industry

Marine/Ocean energy industry

Recreational fishers and associations

Universities and other research organisations

Scuba diving associations, clubs and commercial operators

Recreational boating

State / territory governments

Department of Parks and Wildlife, WA

Department of Environment and Heritage Protection, QLD

Department of National Parks, Recreation, Sport and Racing, QLD

Department of Primary Industries, NSW

Fisheries agencies

Museums

NSW National Parks and Wildlife Service

Natural Resource Management Bodies/ Catchment Management Authorities in coastal regions

Local Government in coastal regions

19 References

Bansemer, C. (2009). Population biology, distribution, movement patterns and conservation requirements of the grey nurse shark (Carcharias taurus Rafinesque 1810) along the east coast of Australia. University of Queensland. St Lucia, Queensland Australia. 143 pp.

Bansemer, C., & Bennett, M. (2010). Retained fishing gear and associated injuries in the east Australian grey nurse sharks (Carcharias taurus): Implications for population recovery. Marine and Freshwater Research 61(1), 97–103.

Beeton, R. J. S., Buxton, C. D., Cutbush, G. C., Fairweather, P. G., Johnston, E. L., & Ryan, R. (2012). Report of the Independent Scientific Audit of Marine Parks in New South Wales. New South Wales Government, State of New South Wales.

Bennett, M., & Bansemer, C. (2004). Investigations of grey nurse shark in Queensland to fulfil actions under the Recovery Plan for grey nurse shark (Carcharias taurus) in Australia regarding the impact of divers, and establishment of a photographic database to improve knowledge of migratory movements, localised site movements, and estimation of bycatch. National Heritage Trust, Canberra.

Cardno Ecology Lab. (2010). Development and implementation of a population protocol to provide an estimate of the size of the east coast population of grey nurse sharks (Carcharias taurus). Draft Stage Two Report for the Department of Environment, Water, Heritage and the Arts, Canberra.

Cavanagh, R. D., Kyne, P. M., Fowler, S. L., Musick, J. A., & Bennett, M. B. (2003). Conservation Status of Australian Chondrichthyans. Report of the IUCN Shark Specialist Group Australia and Oceania Regional Red List Workshop. University of Queensland – School of Biomedical Sciences. 170 pp.

Compagno, L. J. V. (1984). FAO species catalogue. Vol. 4. Sharks of the world. An annotated and illustrated catalogue of sharks species known to date. Part 1. Hexanchiformes to Lamniformes. FAO Fisheries Synopsis 125 (Vol. 4, Pt. 1). 249 pp.

Cropp, B. (1964). Shark Hunters. Rigby, Adelaide.

Dicken, M. L. (2006). Population dynamics of the raggedtooth shark (Carcharias taurus) along the east coast of South Africa. Rhodes University. Grahamstown, South Africa. Available on the internet at: eprints.ru.ac.za/247/01/Dicken – Phd thesis.pdf

DEWHA (Department of Environment, Water, Heritage and the Arts). (2009). Review of the Grey Nurse Shark Recovery Plan. Report prepared by the Department of Environment, Water, Heritage and the Arts, Canberra.

DSEWPaC (Department of Sustainability, Environment Water, Population and Communities). (2013). Draft 2013 Issues Paper for the Grey Nurse Shark (Carcharias taurus), April 2013. DSEWPaC, Canberra.

Dudley, S. F. J. (1997). A comparison of the shark control programs of New South Wales and Queensland (Australia) and KwaZulu-Natal (South Africa). Ocean and Coastal Management 34, 1–27.

EA (Environment Australia). (2002) Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia. Environment Australia, Canberra.

Krogh, M. (1994). Spatial, seasonal and biological analysis of sharks caught in the New South Wales protective beach meshing programme. Australian Journal of Marine and Freshwater Research 45, 1087–1106.

Last, P. R., & Stevens, J. D. (2009). Sharks and Rays of Australia. Second Edition. CSIRO Division of Fisheries, Hobart, Tasmania, Australia.

Lucifora L., Menni, R., & Escalante, A. H. (2002). Reproductive ecology and abundance of the sand tiger shark, Carcharias taurus, from the Southwestern Atlantic. ICES Journal of Marine Science 59, 553–561.

McAuley, R., Newbound, D., & Ashworth, R. (2002). Field Identification Guide to Western Australian Sharks and Shark-like Rays. Fisheries Occasional Publications No. 1, July 2002. Department of Fisheries, Perth, Western Australia. 25 pp.

Musick, J. A., Branstetter, S., & Colvocoresses, J. A., (1993). Trends in shark abundance from 1974 to 1991 for the Chesapeake Bight region of the US Mid-Atlantic coast. Conservation Biology of Elasmobranchs. NOAA Technical Report, National Marine Fisheries Service, USA.

NSW DPI (New South Wales Department of Primary Industries). (2002). Grey Nurse Shark (Carcharias taurus) Draft Recovery Plan. New South Wales Department of Primary Industries.

NSW DPI (New South Wales Department of Primary Industries). (2012). Shark Meshing (Bather Protection) Program 2010–2011. Available on the internet at: www.dpi.nsw.gov.au/__data/assets/pdf_file/0003/429537/Final-Report-Apr-2012.pdf

Otway, N. M., Bradshaw, C., & Harcourt, R. (2004). Estimating the quasi-extinction of the Australian grey nurse shark (Carcharias taurus) population using deterministic age- and stage-classified models. Biological Conservation 119, 341–350.

Otway, N. M., & Burke, A. L. (2004). Mark-recapture population estimate and movements of grey nurse sharks. New South Wales Fisheries Final Report Series No.63. NSW Fisheries Office of Conservation, Nelson Bay, NSW.

Otway, N. M., Burke, A. L., Morrison, N. S., Parker, P. C. (2003). Monitoring and identification of NSW critical habitat sites for conservation of grey nurse sharks. New South Wales Fisheries Final Report Series No. 47. NSW Fisheries Office of Conservation, Nelson Bay, NSW. 62 pp.

 

Otway, N. M., Storrie, M. T., Louden, B. M., & Gilligan, J. J. (2009). Documentation of depth-related migratory movements, localised movements at critical habitat sites and the effects of scuba diving for the east coast grey nurse shark population. Final report for the Department of Environment, Water, Heritage and the Arts, Canberra. 88 pp.

Pepperell, J. G. (1992). Trends in the distribution, species composition and size of sharks caught by gamefish anglers off south-eastern Australia, 1961–90. Australian Journal of Marine and Freshwater Research 43, 213–225.

Read, A.D., & Ward, T. (1986). Taiwanese longliners off northern Australia. Australian Fisheries 45 (8), 6–8.

Reid, D. D., & Krogh, M. (1992). Assessment of catches from protective shark meshing off New South Wales beaches between 1950 and 1990. Australian Journal of Marine and Freshwater Research 43, 283–296.

Silberschneider, V., & Gray, C.A. (2005). Arresting the decline of the commercial and recreational fisheries for mulloway (Argyrosomus japonicus). NSW Department of Primary Industries.

Smith, S. E., Au, D. W., & Show, C. (1998). Intrinsic rebound potentials of 26 species of Pacific sharks. Marine and Freshwater Research 49, 663–678.

Stow, A., Zenger, K., Briscoe, D., Gillings, M., Peddemors, V., Otway, N., & Harcourt, R. (2006). Isolation and genetic diversity of endangered grey nurse shark (Carcharias taurus) populations. Biological Letters 2(2), 308–311.

20 Appendices

20.1 Appendix 1

Table 2:  Summary of the status of the actions identified in the 2002 Recovery Plan for the Grey Nurse Shark (Carcharias taurus) in Australia (EA, 2002)

A. Reduce the impact of commercial fishing on grey nurse sharks

 

 

B. Reduce the impact of recreational fishing on grey nurse sharks.

 

C. Reduce the impact of shark finning on grey nurse sharks.

 

D. Reduce the impact of shark control activities on grey nurse sharks.

 

E. Manage the impact of ecotourism on grey nurse sharks.

 

F. Reduce the impact of aquaria on grey nurse sharks.

 

G. Identify and establish protected areas to protect grey nurse sharks at key locations.

 

H. Develop research programs towards the conservation of grey nurse sharks.

 

 

I. Develop population models to assess populations and monitor recovery.

 

J. Promote community education.

 

K. Reassess the conservation status of the grey nurse shark.

 

20.2 Appendix 2

Table 3:  Organisations represented on the then National Shark Recovery Group (NSRG)

 

 

 

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[1] Further information regarding BIAs is provided in Section 10.1: Marine Bioregional Plans.