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Who it affects

• Primary public actors: Commonwealth and state environment agencies (responsibility for implementation in their jurisdictions) and the Albatross & Petrel Recovery Team (sections 4.3, 6).
• Fishing industry and fisheries managers: many actions specifically target reducing seabird bycatch and improving monitoring in Commonwealth and high‑seas fisheries (Strategy 4, Table 9; Strategy 7, Table 12). The plan supports uptake of mitigation measures, electronic monitoring and reporting (Tables 9, 11, 12).
• Research and conservation groups: required for monitoring, risk analyses, disease work, and community engagement (Tables 7–11).
• Tourism, transport and other private operators: access controls, biosecurity and restrictions at breeding islands affect vessel operators, tour operators and anyone visiting colonies (Strategy 1, Table 6; section 2.6 ‘‘Habitats regarded as critical’’).

Why it matters (official rationale + practical implications)

Officially: the plan states many albatross and petrel species are long‑lived, site‑faithful and face high adult mortality from fisheries bycatch, introduced predators at breeding islands, marine pollution (plastics, oil), and climate change; it aims to coordinate domestic and international measures to stop declines and promote recovery (sections 1, 3, 4).

Tested against implementation costs, incentives and trade‑offs:

• Costs and who pays. The plan includes indicative costs (Table 14) totalling about $7 million over five years for the listed actions, but explicitly says these are guidance only and do not represent funding commitments; the Commonwealth and states expect to include work in core budgets or seek external funding, and the fishing industry and NGOs are listed as partners (section 7; Table 14). That means the financial burden is dispersed and uncertain—implementation depends on agency priorities and stakeholder willingness.
• Regulatory effect and compliance burden. The recovery plan itself does not in most places create immediate new regulatory prohibitions on private parties, but Commonwealth agencies must not act contrary to it and the plan supports implementation of binding instruments (e.g. Threat Abatement Plans) and fisheries management rules that do impose costs on fishers (section 2.1; Strategy 4, Table 9). In practice, compliance costs will be driven by fisheries measures (e.g. weighted lines, night setting, electronic monitoring) and by biosecurity and access controls at breeding islands (Tables 6, 9, 12).
• Private enterprise impacts. Fishers may face additional operational costs and reporting/monitoring obligations where the plan supports or leads to stricter management (Strategy 4 and 7). The plan also flags potential market opportunities if fisheries can market lower‑bycatch product, but that depends on private marketing choices and certification (Strategy 7, Table 12; section 9). Tourism and small operators face stricter biosecurity and access management at key breeding islands (Strategy 1, Table 6).
• Bureaucratic discretion and coordination risk. The plan relies on multiple agencies and jurisdictions (Commonwealth + WA, VIC, QLD, TAS) and international forums (ACAP, RFMO’s). Implementation therefore requires coordination across agencies with different priorities and budgets, creating execution risk (sections 1, 2.4, 7). Much of the plan’s practical effect depends on fisheries managers (AFMA) and international cooperation beyond Australia’s jurisdiction (section 2.4; Strategy 7).
• Evidence and monitoring burden. The plan places emphasis on filling data gaps (monitoring frequency schedules in Table 7), using new technologies (electronic monitoring, AI for species ID) and long‑term demographic studies. Those activities create scientific and administrative workstreams and recurring costs (Strategy 2, Table 7; Strategy 4, Table 9).
• Trade‑offs and opportunity cost. Resources directed to seabird recovery (monitoring trips to remote islands, observer programs, EM systems) compete with other conservation or public spending priorities. The plan notes feasibility constraints (remote logistics, access) and that recovery likely extends beyond the 10‑year statutory life of the plan (sections 1, 5.2, 7).

Key implementation risks and likely behavioural changes

• If international cooperation falters, bycatch reductions achieved in Australian waters may be undermined by high bycatch on the high seas—plan recognises this (section 3 Review; Strategy 7).
• Fishing operators are likely to adopt or be required to adopt combinations of mitigation measures, electronic monitoring and reporting; that changes operational procedures and may raise short‑run costs (Tables 9, 12).
• Agencies and research groups will increase monitoring activity in those islands and colonies identified as critical habitat and fill demographic data gaps (Strategy 2; Table 7). This increases demand for logistic support to remote sites.
• Access and biosecurity measures will constrain tourism and commercial activity at breeding sites (Strategy 1; Table 6).

Bottom line

This is a detailed policy recovery plan that (1) codifies recovery objectives and measurable performance targets, (2) allocates responsibilities across Commonwealth, participating states and stakeholders, (3) sets out specific actions and indicative budgets, and (4) leans heavily on fisheries mitigation (domestic and international), monitoring, biosecurity and research to achieve recovery. Its legal bite is mainly through the EPBC Act obligations on Commonwealth agencies and by guiding and buttressing other binding instruments (Threat Abatement Plans, fisheries rules). Success depends on sustained funding, cross‑jurisdictional coordination, fisheries management actions (and industry cooperation), and effective international engagement (see sections 2.1, 4.2, 5, 7, Tables 9 and 12).

© Copyright Commonwealth of Australia, 2022.

The National Recovery Plan for albatrosses and petrels is licensed by the Commonwealth of Australia for use under a Creative Commons Attribution 4.0 International licence with the exception of the Coat of Arms of the Commonwealth of Australia, the logo of the agency responsible for publishing the report, content supplied by third parties, and any images depicting people. For licence conditions see: https://creativecommons.org/licenses/by/4.0/.

This report should be attributed as ‘National Recovery Plan for albatrosses and petrels (2022), Commonwealth of Australia 2022'.

The Commonwealth of Australia has made all reasonable efforts to identify content supplied by third parties using the following format '© Copyright, [name of third party]’.

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 of damage that may be occasioned directly or indirectly through the use of, or reliance on, the contents of this publication.

Image credits

Front cover, pages 44, 47, 54, 55, 59, 109: Shy Albatross (Thalassarche cauta).

© Copyright, Jonathon HS Barrington.

Back cover: Shy Albatross (Thalassarche cauta). © Copyright, Kris Carylon.

National Recovery Plan for albatrosses and petrels (2022)

Contents

List of Tables

List of Figures

Glossary

1 Summary

2 Introduction

2.1 Recovery plans

2.2 Albatross and petrel species referred to in recovery plan

2.3 Review of previous recovery plan

2.4 Legal framework

2.5 Albatross and petrel ecology

2.6 Habitats regarded as critical to the survival of the threatened species

2.7 Key Biodiversity Areas

3 Threats

3.1 Nature of threats

3.2 Threat prioritisation

3.3 Terrestrial threats

3.4 Marine threats

3.5 Summary of terrestrial and marine threats

4 Recovery plan vision, objectives and strategies

4.1 Long-term vision

4.2 Recovery plan objective

4.3 Strategies to achieve the objective

5 Actions to achieve the objective

5.1 Priorities assigned to each action

5.2 Overarching actions

Strategy 1 – Ensure ongoing protection of albatross and petrel breeding site habitats in Australia’s jurisdiction

Strategy 2 – Improve the understanding of the size, structure and population trends for albatrosses and petrels breeding in Australia's jurisdiction

Strategy 3 – Improve effectiveness of management measures that reduce land-based threats to albatrosses and petrels breeding within Australia's jurisdiction

Strategy 4 – Improve effectiveness of management measures that reduce marine based threats to albatrosses and petrels foraging in Australia's jurisdiction

Strategy 5 – Improve understanding of generalised threats to albatrosses and petrels breeding and foraging within Australia's jurisdiction

Strategy 6 – Improve community awareness of the conservation of albatrosses and petrels

Strategy 7 – Achieve substantial progress towards global conservation of albatrosses and petrels in international conservation and fishing forums

5.3 Performance of the recovery plan

6 Recovery team

7 Duration and cost of the recovery process

8 Effects on other native species and biodiversity benefits

9 Social and economic considerations

10 Affected interests

11 Consultation

12 Organisations/persons involved in evaluating performance of the plan

13 References

APPENDIX A: Species Profiles

Albatross species breeding in Australia's jurisdiction

Diomedea exulans Wandering Albatross Linnaeus 1758

Phoebetria palbebrata Light-mantled Albatross (Forster 1785)

Thalassarche cauta Shy Albatross (Gould 1841)

Thalassarche chrysostoma Grey-headed Albatross (Forster 1785)

Thalassarche melanophris Black-browed Albatross (Temminck 1828)

Petrel species breeding in Australia's jurisdiction

Macronectes giganteus Southern Giant Petrel (Gmelin 1789)

Macronectes halli Northern Giant Petrel Mathews 1912

Procellaria cinerea Grey Petrel Gmelin 1789

Albatross species only foraging in Australia's jurisdiction

Diomedea amsterdamensis Amsterdam Albatross Roux et al. 1983

Diomedea antipodensis Antipodean Albatross Robertson and Warham 1992

Diomedea dabbenena Tristan Albatross Matthews 1929

Diomedea epomophora Southern Royal Albatross Lesson 1825

Diomedea sanfordi Northern Royal Albatross Murphy 1917

Phoebetria fusca Sooty Albatross (Hilsenberg 1822)

Thalassarche bulleri Buller's Albatross (Rothschild 1893)

Thalassarche carteri Indian Yellow-nosed Albatross (Rothschild 1903)

Thalassarche chlororhynchos Atlantic Yellow-nosed Albatross (Gmelin 1789)

Thalassarche eremita Chatham Albatross Murphy 1930

Thalassarche impavida Campbell Albatross Mathews 1912

Thalassarche salvini Salvin's Albatross (Rothschild 1893)

Thalassarche steadi White-capped Albatross Falla 1933

Petrel species only foraging in Australia's jurisdiction

Procellaria aequinoctialis White-chinned Petrel Linnaeus 1758

Procellaria parkinsoni Black Petrel Gray 1862

Procellaria westlandica Westland Petrel Falla 1946

APPENDIX B: Status under Commonwealth and state threatened species legislation of albatross and petrel species referred to in the recovery plan

APPENDIX C: Habitats that are regarded as critical to the survival of threatened albatross and petrel species breeding within Australia's jurisdiction

List of Tables

Table 1: Albatross and petrel species referred to in the National Recovery Plan for albatrosses and petrels.

Table 2: Albatross and petrel breeding site locations in Australia’s jurisdiction.

Table 3: Risk prioritisation

Table 4: Terrestrial and marine threats affecting the albatross and petrel species included in the recovery plan, adapted from Salafsky et al. (2008) and Dias et al. (2019)

Table 5: Summary of overarching actions in the National Recovery Plan for albatrosses and petrels.

Table 6: Strategy 1: Actions to ensure ongoing protection of albatross and petrel breeding site habitats in Australia's jurisdiction.

Table 7: Strategy 2: Actions to improve the understanding of the size, structure and population trends for albatrosses and petrels breeding in Australia’s jurisdiction.

Table 8: Strategy 3: Actions to improve effectiveness of management measures that reduce land-based threats to albatrosses and petrels breeding within Australia’s jurisdiction.

Table 9: Strategy 4: Actions to improve effectiveness of management measures that reduce marine based threats to albatrosses and petrels foraging in Australia's jurisdiction.

Table 10: Strategy 5: Actions to improve understanding of generalised threats to albatrosses and petrels breeding and foraging within Australia's jurisdiction.

Table 11: Strategy 6: Actions to improve community awareness of the conservation of albatrosses and petrels.

Table 12: Strategy 7: Actions to achieve substantial progress towards global conservation of albatrosses and petrels in international conservation and fishing forums.

Table 13: Performance measures.

Table 14: Summary of recovery actions and estimated costs for the first five years of implementation (these estimated costs do not take into account inflation over time).

Table 15: Affected interests.

Table 16: Classification of albatross and petrel species to which the recovery plan applies.

Table 17: Wandering Albatross (Diomedea exulans) risk matrix.

Table 18: Light-mantled Albatross (Phoebetria palbebrata) risk matrix.

Table 19: Shy Albatross (Thalassarche cauta) risk matrix.

Table 20: Grey-headed Albatross (Thalassarche chrysostoma) risk matrix.

Table 21: Black-browed Albatross (Thalassarche melanophris) risk matrix.

Table 22: Southern Giant Petrel (Macronectes giganteus) risk matrix.

Table 23: Northern Giant Petrel (Macronectes halli) risk matrix.

Table 24: Grey Petrel (Procellaria cinerea) risk matrix.

Table 25: Amsterdam Albatross (Diomedea amsterdamensis) risk matrix.

Table 26: Antipodean Albatross (Diomedea antipodensis) risk matrix.

Table 27: Tristan Albatross (Diomedea dabbenena) risk matrix.

Table 28: Southern Royal Albatross (Diomedea epomophora) risk matrix.

Table 29: Northern Royal Albatross (Diomedea sanfordi) risk matrix.

Table 30: Sooty Albatross (Phoebetria fusca) risk matrix.

Table 31: Buller’s Albatross (Thalassarche bulleri) risk matrix.

Table 32: Indian Yellow-nosed Albatross (Thalassarche carteri) risk matrix.

Table 33: Atlantic Yellow-nosed Albatross (Thalassarche chlororhynchos) risk matrix.

Table 34: Chatham Albatross (Thalassarche eremita) risk matrix.

Table 35: Campbell Albatross (Thalassarche impavida) risk matrix.

Table 36: Salvin's Albatross (Thalassarche salvini) risk matrix.

Table 37: White-capped Albatross (Thalassarche steadi) risk matrix.

Table 38: White-chinned Petrel (Procellaria aequinoctialis) risk matrix.

Table 39: Black Petrel (Procellaria parkinsoni) risk matrix.

Table 40: Westland Petrel (Procellaria westlandica) risk matrix.

Table 41: Vertebrate animal species introduced to Macquarie Island.

List of Figures

Figure 1: Modelled Australian distribution of Wandering Albatross (Diomedea exulans).

Figure 2: Modelled Australian distribution of Shy Albatross (Thalassarche cauta).

Figure 3: Modelled Australian distribution of Grey-headed Albatross (Thalassarche chrysostoma).

Figure 4: Modelled Australian distribution of Black-browed Albatross (Thalassarche melanophris).

Figure 5: Modelled Australian distribution of Southern Giant Petrel (Macronectes giganteus).

Figure 6: Modelled Australian distribution of Northern Giant Petrel (Macronectes halli).

Figure 7: Modelled Australian distribution of Amsterdam Albatross (Diomedea amsterdamensis).

Figure 8: Modelled Australian distribution of Antipodean Albatross (Diomedea antipodensis).

Figure 9: Modelled Australian distribution of Tristan Albatross (Diomedea dabbenena).

Figure 10: Modelled Australian distribution of Southern Royal Albatross (Diomedea epomophora).

Figure 11: Modelled Australian distribution of Northern Royal Albatross (Diomedea sanfordi).

Figure 12: Modelled Australian distribution of Sooty Albatross (Phoebetria fusca).

Figure 13: Modelled Australian distribution of Buller’s Albatross (Thalassarche bulleri).

Figure 14: Modelled Australian distribution of Indian Yellow-nosed Albatross (Thalassarche carteri).

Figure 15: Modelled Australian distribution of Chatham Albatross (Thalassarche eremita).

[Figure 16: Modelled Australian distribution of Campbell Albatross (Thalassarche

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