Environment Australia is grateful to those individuals and organisations who assisted in the drafting of this Plan, in particular the CSIRO Marine Research Division which carried out the original research. Much of the descriptive information in the Plan has been drawn from the CSIRO reports by Koslow and Gowlett-Holmes (1998), and Koslow, Gunn and Rintoul (1998). The contributions of those individuals and groups who provided submissions, information and assistance in the period leading up to the preparation of this Plan are acknowledged.
Attachment 4 – Characteristics and Management Principles of Relevant IUCN Protected Area Management Categories......
Attachment 5 – Instrument of Prohibition to restrict access to Reserve from 500 m below the sea surface to 100 m below the sea-bed......
1. Introduction
The Tasmanian seamounts are located 170 kilometres south of Hobart in Australia’s Exclusive Economic Zone (Figure 1). There are approximately 70, situated in unusually close proximity to one another (Hill et al., 1997). They are the cone-shaped remnants of extinct volcanoes, 200-500 metres high, several kilometres across at the base, and typically have slope gradients of 20º-30º (Hill et al., 1997). They rise sharply from the ocean floor at depths of 1000-2000 metres beneath the sea surface, and peak at depths of 660‑1940 metres (Koslow and Gowlett-Holmes, 1998).
Scientific surveys of the area revealed that there is high endemicity amongst the benthic species, some which are newly recorded for Australian waters and science (Koslow and Gowlette-Holmes, 1998; Richer de Forges et al., 2000). As the deeper seamounts in the area are beyond the depths where orange roughy aggregations have been found and are too deep to be accessed using current trawl fishing technology they are in pristine condition.
1.1 Declaration of the Reserve
The Tasmanian seamounts region was first revealed in detail in 1984 by surveys carried out by the Australian Geological Survey Organisation (AGSO). In 1995, following a report by Koslow (1994) of the Commonwealth Scientific and Industrial Research Organisation (CSIRO), the deep-water trawl fishing industry, Environment Australia (EA) and Australian Fisheries Management Agency (AFMA) agreed to close to trawling a 370 km2 Interim Protected Area of deep unfished seamounts, pending investigation of their conservation significance.
EA, CSIRO and the Fisheries Research Development Corporation then cooperated in organising a research investigation, reported in June 1998 by Koslow and Gowlett-Holmes. The findings clearly demonstrated the biological significance of the Interim Protected Area.
The CSIRO findings provided the scientific basis which led the Commonwealth Government to proclaim the Tasmanian Seamounts Marine Reserve (the Reserve) on 19 May 1999 (Attachment 1) under the National Parks and Wildlife Conservation Act 1975 (NPWC Act) covering 15 seamounts. The purpose of the proclamation was to protect the unique and vulnerable benthic communities of the seamounts.
The NPWC Act was replaced by the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) on 16 July 2000. The proclamation of the Reserve is continued in force by the Environmental Reform (Consequential Provisions) Act 1999 as if it had been made under the EPBC Act, and as if the proclamation stated that the purpose for which the Reserve was declared were: the preservation of the area in its natural condition; and, the encouragement and regulation of the appropriate use, appreciation and enjoyment of the area by the public.
1.2 Structure of Management Plan
The Plan first outlines the conservation values of the Reserve (section 1.3), including biological diversity at community and species levels and the Reserve’s oceanography. Secondly, pressures and uses (section 2) are discussed, establishing the activities in the Reserve that need to be managed to conserve biodiversity. The management framework and legal context are then highlighted (section 3), before the management prescriptions, including strategic objectives and management goals, (section 4), are presented. Finally, the process and framework for assessing the performance of the Plan is outlined (section 5).
The management of the Reserve under this management plan is activity-focussed, to aid users to more easily identify what activities are, or are not, allowed within the Reserve, and goal focused, to identify the goals which are to be achieved.
The management goals and activities focus on the benthic environments of the Reserve rather than the entire Tasmanian seamounts ecosystem. This is due to the fact that little is known of the interactions between the benthic and pelagic environments. The performance assessment of the Management Plan will consider the two environments in an holistic manner, to determine the relationship between the two environments and whether management goals have been reached.
Figure 1 - Location of the Tasmanian Seamounts Marine Reserve
Previously in applying the National Strategy for Ecologically Sustainable Development to oceans, the emphasis has been on actions within separate sectors, such as fisheries, petroleum, and protected areas. This Plan, by contrast, is goal- and activity-orientated, consistent with having multiple objectives, and thus will integrate management and planning across sectors to manage the Reserve at the ecosystem level. Management decisions will take into account the ecological linkages, including population dynamics, species interactions and trophic linkages.
The performance assessment (see section 5) will provide valuable information on how the management has worked towards the strategic and management objectives. Future plans will be developed based on the results from the performance review process to continually improve the management of the conservation values of the Tasmanian Seamounts Marine Reserve.
1.4 Description of Conservation Values
Overall, the habitats of the seamounts, their values, and their relationship with the surrounding waters and seabed, are not well understood.
The findings of Koslow and Gowlett-Holmes (1998) and Koslow et al (in press) suggest it is reasonable to view the field of approximately 70 Tasmanian Seamounts and their associated biota as fairly homogeneous. It is, therefore, possible to treat them as a single ecological community, and as such, the 15 seamounts contained within the Reserve provide a representative sample.
Further research to increase knowledge and better understand seamount ecosystems is needed. During the life of this Plan research will be a major focus to close the gap and provide more information to better manage the Reserve, particularly in areas such as the interactions and energy sharing between pelagic and benthic species. Results from this and other research projects will be used to develop the next Plan for the Reserve.
1.4.1 Biological Diversity - Community Level
The benthic communities of the Tasmanian Seamounts can be divided into two principal types: coral- and urchin-dominated communities (Koslow and Gowlett-Holmes, 1998; Koslow et al., in press).
The coral-dominated community is characterised by a matrix of living and dead colonial hard coral (Solenosmilia variabilis) and is generally found on shallower seamounts in the Reserve (< 1400 m). This type of community supports a high diversity of species. The dense coral matrix provides a platform for filter feeders, such as hydroids and sponges, solitary stony corals
as well as black, gold and bamboo corals. The coral matrix also provides shelter for a wide variety of animals such as crabs, lobsters, sea spiders, seastars, brittlestars and small fish such as deep-sea cod (Koslow and Gowlett-Holmes, 1998; Koslow et al., in press).
The deeper seamounts are dominated by sea urchins. While the deeper seamounts also support a variety of invertebrates, there are fewer species groups and a lower benthic biomass. The deeper seamounts (> 1400 m), typically contain large quantities of dead S. variabilis that other organisms could use for attachment or for shelter (Koslow and Gowlett-Holmes, 1998; Koslow et al., in press).
1.4.2 Biological Diversity - Species Level
The survey of fourteen Tasmanian seamounts found species-richness to be high in global terms with 279 species located comprising 242 species of invertebrates and 37 species of fish (Koslow and Gowlett‑Holmes, 1998; Koslow et al., in press). The:
…coralline-based fauna of the seamounts south of Tasmania is a unique fauna with limited distributional range, high levels of endemism and a number of rare faunistic elements of scientific value (Koslow and Gowlett-Holmes, 1998 p. 26).
Many of the species have not yet been identified.
Invertebrates
Seventy-four of the 242 invertebrate species found have been positively identified. Of these 74 species, 20 are new records for Australian waters and an additional 7 species are new records for Tasmanian waters.
Of the species yet to be identified, 139 have been distinguished to genus level; these include 51 species that CSIRO believes to represent species previously unknown to science (Koslow and Gowlett-Holmes, 1998).
Fish
The CSIRO report details 37 fish species collected using long-line, trap and sled methods. Of these, about one-third appear to be undescribed. More than half of the near-bottom species were either new Australian records or undescribed species, suggesting a high level of endemicity on the Tasmanian seamounts.
Richer de Forges et al (2000) compared the fauna of the Tasmanian Seamounts with that from seamounts on the Lord Howe Rise and the Norfolk Ridge in the north Tasman and South West Coral Seas. Not a single species was found in common, although 60 per cent of the soft bottom fauna of south-east Australia is found in tropical waters. The results clearly demonstrate the high level of endemicity of the Tasmanian Seamounts benthic fauna.
The provisional species lists from the CSIRO report are at Attachment 2.
1.4.3 Oceanography
There are three main water masses over the continental slope in the region of the seamounts. The upper water column to a depth of about 500 metres is dominated by Mode Water, formed by winter cooling. Mode Water sets the physical limit to the depth of water directly influenced by the atmosphere in this region (Rintoul et al., 1997; Rintoul and Bullister, 1999).
Between depths of approximately 500 and 1500 metres, there lies a separate water mass known as Antarctic Intermediate Water. This water mass flows in a northerly direction and covers much of the world’s oceans at this intermediate depth. There appears to be little mixing of this water mass with shallower or deeper waters. Below 1500 metres lies a water mass known as North Atlantic Deep Water, which has its origins in the far North Atlantic (Rintoul et al., 1997; Rintoul and Bullister, 1999).
The physics and biology of oceanic systems are generally closely linked, such that the biogeography and depth zonation of marine communities are consistent with the salient features of physical circulation and water mass structure (Fager and McGowan, 1963; Koslow, 1993). Biological communities around the seamounts appear to be closely associated with those in the same water mass as opposed to the water column directly above (Koslow et al., 1994; Koslow et al., 1998).
The richness of the benthic ecosystems is partly due to the influence the seamounts have on the movement of ocean currents. The normally slow deepwater currents increase in speed as they move around the peaks of the seamounts, providing plankton and other organic organisms for corals and other suspension feeders to feed on. Other deepwater species such as small mesopelagic and bathypelagic fishes, squids and prawns are preyed upon by seamount-associated fishes, such as orange roughy (Bulman and Koslow, 1992; Koslow, 1997; Koslow et al., 1998).
2. Uses and Potential Pressures
Any natural area subject to human use is exposed to real or potential pressures from human impacts. There are also potential pressures from external sources such as pollution, or global phenomena such as seawater temperature changes. The existing and potential pressures outlined in this Plan focus on those associated with human activities that can be influenced by management of the immediate area of the Tasmanian seamounts.
A summary of pressures and associated risk is presented in Table 1 below. The management prescriptions and activity management (see sections 4.3 and 4.4) detail which activities are allowed, allowed with a permit or are prohibited within the Reserve.
Commercial fishing is currently the main human use in the area. The Tasmanian Seamounts region is important for commercial fishing, which includes two tuna fisheries (Southern Bluefin Tuna Fishery and Eastern Tuna and Billfish Fishery) and other fisheries (South East Trawl, South East Non-trawl, Southern Shark Fisheries) (AFMA, March 2000) (Southern Squid Jig and Jack Mackerel Fisheries) (AFMA, June 2001). Commercial species found in the area include orange roughy (Hoplostethus atlanticus) and oreos (Pseudocyttus maculatus and Allocyttus niger) in the deeper water and tuna species in the upper 500 metres.
As no juvenile fish of commercial importance were caught during the CSIRO surveys of the seamounts, there is no evidence to suggest that the seamounts are nursery grounds for these species (Koslow and Gowlett-Holmes, 1998; Koslow et al., in press).
2.1.1 Benthic Communities and Seabed
Commercial Fishing
The South East Trawl Fishery is located in Commonwealth waters adjacent to eastern South Australia, Victoria, Tasmania and southern New South Wales. A plan of management for the Fishery is due to come into force under the Fisheries Management Act 1991 (Fisheries Management Act) in 2003. Until that time fishers are regulated through a permitting system.
The Fishery involves trawl methods for taking finfish and crustaceans in Commonwealth waters. Since 1989, about half of the orange roughy catch (usually marketed as deep-sea perch) has been trawled on the south Tasmanian seamounts at between 650 and 1300 metres below the sea surface (Bax, 1996). Much of the deepwater oreo fishery is also based on trawling these seamounts (Koslow and Gowlett-Holmes, 1998).
Catch and effort in the seamounts region are declining for both species. AFMA has advised that the number of trawl vessels operating in the region
has declined from 24 in 1993 to 9 in 1999 and the level of trawl activity, as determined by the number of trawl shots, has declined from 4,312 to just 436 over the same period.
The Fisheries Research and Development Corporation is conducting an investigation into the effects of trawl gear in Australian fisheries, including the South East Trawl Fishery. The results of this research will better inform fisheries management in the seamounts region. The Commonwealth Policy on Fisheries Bycatch (Commonwealth of Australia, 2000b), various research programs, and technological advances are also combining to improve the efficiency of fishing gear.
Although some trawling has previously occurred in the area of the Reserve, it was through support of the trawl industry in recognising the environmental significance of the area that led to the 1995 Memorandum Of Understanding between AFMA and Environment Australia to exclude trawling from approximately 20 per cent of the Tasmanian Seamounts area.
The South East Non-Trawl Fishery is managed under the South East Non-Trawl Fishery 2000 Management Arrangements (Commonwealth of Australia, 1999b) and allows all fishing methods, other than trawl and Danish seine, to target demersal scalefish species in Commonwealth waters. AFMA advise that South East Non Trawl Fishery Permit holders operating in the area of the Reserve mainly fish using hook and line methods to target demersal species. The use of gillnets is currently prohibited by AFMA south of 41°South in waters deeper than 200 metres, and as such are not used within the area of the Reserve.
The Southern Shark Fishery is located in Commonwealth waters adjacent to Victoria, Tasmania and South Australia and is based on the use of demersal gillnet and hook fishing methods. The Fishery is based on several species of temperate-water sharks inhabiting the continental shelf and slope of southern Australia (Commonwealth of Australia, 1998b). The use of gillnets is currently prohibited by AFMA south of 41°South in waters deeper than 200 metres, and as such are not used within the area of the Reserve.
Trawling
The benthic communities of the Tasmanian seamounts are highly vulnerable to trawling activities (Koslow and Gowlett-Holmes, 1998).
Demersal trawling involves obvious interactions with the benthic environment. The gear for this type of fishing includes the use of heavy bobbins along a foot rope, which is pulled along the ocean floor – collecting demersal fish and removing or damaging benthic organisms along the trawl tracks and stirring up sediments (Collie et al., 1997).
Permanent faunal changes brought about by trawling have been recorded (Jones, 1992). Research has established that the degree of environmental perturbation from the bottom trawling activities is related to the weight of the gear on the seabed, the towing speed, the nature of the bottom sediments, and the strength of the currents (Jones, 1992). In deeper water where the fauna is less adapted to changes in sediment regimes and disturbance from storm events, the effects of gear take longer to recover. Studies indicate that in deep water (>1000m), the recovery time is probably measured in decades to centuries (Jones, 1992).
The heavily fished, shallower Tasmanian seamounts, peaking at about 650-1000 metres below sea level, exhibit a benthic biomass significantly lower than seamounts in lightly fished or unfished areas, and, correspondingly, significant areas where reef aggregate and associated flora and fauna has been removed from the slopes or turned to rubble. In newly fished areas, tonnes of coral by-catch have been observed being hauled to the surface (Koslow and Gowlett-Holmes, 1998; Koslow et al., in press).
By contrast, the deeper Tasmanian seamounts, peaking at depths of 1150-1700 metres beneath the sea surface, are species diverse. They have not yet been targeted by fishers, mainly due to the lack of fish aggregations at those depths and to the limitations of current gear technology, and are in pristine condition (Koslow and Gowlett-Holmes, 1998). It is primarily the deeper seamounts that are protected in the Reserve.
The rate at which deep-water corals can rejuvenate is unknown. Studies elsewhere indicate that they have a low rate of recruitment and considerable longevity: 75 years for pink coral (Corallium), and even longer for some black corals (Grigg, 1993). The bamboo coral from the Tasmanian Seamounts appear to live to about 100 years (Koslow, unpublished data from C14 ageing studies). Damage to these slow growing corals may take decades or centuries to recover.
Trawling in areas adjacent to the Reserve
Legal trawling adjacent to the boundary of the Reserve could have indirect impacts on fauna within the Reserve. Sediment from trawling operations could drift into the Reserve. The resulting increase in turbidity and sedimentation could impact on the benthic communities (Collie et al., 1997). The sensitivity of these communities to sediment drift is unknown.
As seamount habitat surrounding the Reserve is progressively degraded by trawling the Reserve’s ecosystems may become isolated from other similar systems with which species interchange may occur. This could affect the more mobile organisms, some of which are regionally endemic.
The potential of these threats to devalue the benthic communities was a consideration in the design of the Reserve and the boundaries have been located to minimise the possibility of indirect impacts.
Petroleum and mineral exploration and development
Mineral and petroleum prospectivity in the Reserve is low; hence, there is unlikely to be any interest in exploration activity. AGSO has reported that there is no evidence for the presence of Mesozoic/Tertiary sedimentary basins in the region that could be considered as having any petroleum potential. The Commonwealth Department of Industry Science and Resources further advised that a ferromanganese crust containing valuable metals including copper, nickel and cobalt may coat rocky outcrops in the region though not in commercial quantities. AGSO advised that any reserve in the vicinity of the seamounts would have no effect on the mineral or petroleum resources of the region as a whole.
Despite low petroleum prospectivity in the area, petroleum and mineral exploration and development activities generally have the potential to damage benthic flora and fauna through drilling. Threats to benthic flora and fauna from drilling fruids used in the petroleum industry have been relatively well studied in some regions. The three main categories of drilling fluids are mineral-based fluids, synthetic-based fluids and water-based fluids. In a study on the impact of a type of oil-based fluid used at a site in the Nort Sea, Dann, Booij, Mulder and van Weerlee, (1996) found that the discharge of oil-based fluids cuttings involved high disturbance of benthic fauna up to hundreds of metres from the platforms. Smaller effects could be detected up to a few kilometres away. Recolonisation of the benthos by some species was observed to commence 11 months after termination of drilling (Daan, Booij, Mulder and van Weerlee, 1996), however, monitoring did not extend beyond these initial observations. Currently, the majority of offshore drilling operations use water-based fluids because they have been shown to provide the best environmental performance in terms of their non-toxic nature (Cobby and Craddock, 1999).
Other pollution sources also include those related to associated mining operations or from ships engaged in mining activity.
Research
To date little research on benthic communities has been conducted in the Reserve. Some research methods, for example collecting species through sled techniques, may damage habitat and reduce the size of species.
Tourism
There is currently no tourist industry operating in the region of the Reserve. The tourism and recreational potential for the Reserve is minimal due to the distance from Hobart. No diving technology currently exists to allow access to the depths of the seamounts. It is unlikely that any tourism ventures will be proposed during the life of this Plan.
2.1.2 Pelagic Communities
Commercial fishing
The Southern Bluefin Tuna Fishery is managed under the Southern Bluefin Tuna Fishery Management Plan 1995 (Commonwealth of Australia, 1995) made under the Fisheries Management Act. Southern bluefin tuna (Thunnus maccoyii) is a highly migratory species which is widely distributed throughout the waters of the southern hemisphere (Commonwealth of Australia, 2000a).
The Eastern Tuna and Billfish Fishery, a multi-species, multi-method fishery, extends to the southern limit of the Australian Fishing Zone south of Tasmania (Commonwealth of Australia, 2000a). The main commercial target species are yellowfin, bigeye and albacore tuna, and broadbill swordfish, all of which are taken by pelagic long-line. These pelagic species may congregate in the vicinity of seamount peaks, though the nature of any relationship between tuna and the physical or biological resources of the seamounts is yet to be determined.
In the seamounts region, the catch method for these fisheries involves long-lining in the upper 300 metres of the water column. During the period 1992‑99, 76 per cent of long-line fishing effort took place from October to January. The average length of domestic long-line used in the region between 1997 and 1999 was 49 kilometres (AFMA, March 2000).
The Southern Squid Jig Fishery is located in Commonwealth water adjacent to New South Wales, South Australia, Tasmanian and Victoria. The Fishery is managed under a Permit system, and targets arrow squid. Effective fishing of the species only occurs at depths of up to 150 metres.
The Jack Mackerel Fishery is located in Commonwealth water adjacent to New South Wales, South Australia, Tasmania, Victoria and southern Western Australia. This Fishery is managed under a Permit system, and comprises a mid-water trawl sector and a purse seine sector. Fishing activities in the mid-water trawl sector are closely linked to those in the South East Trawl Fishery.
The impact of fishing for southern bluefin tuna and other pelagic species on the deeper water ecosystems has been initially considered by CSIRO (Koslow et al., 1998) who advised that fishing to a depth of 500 metres was unlikely to have a significant impact on the benthic ecosystems. However, their advice does acknowledge that pelagic organisms in the upper 500 metres do obtain some energy from the deeper water, as predators in the shallow and deeper waters share prey due to vertical migration by small fishes, cephalopods and crustaceans (Figure 2). The amount of prey sharing has not been quantified. Therefore, research including those considering species interactions and benthic communities will be very important. During the life of this Plan benthic/pelagic interaction research will be conducted, the results will be used to prepare the next management plan for the Reserve.
Threatening processes associated with long-lining have been considered under the Threat Abatement Plan for the Incidental Catch (or By-catch) of Seabirds During Oceanic Long-line Fishing Operations (Commonwealth of Australia, 1998c), which was made under the Endangered Species Act 1992 and is now in effect under the EPBC Act. The objective of the Threat Abatement Plan is to, within five years, reduce seabird by-catch in all fishing areas, seasons or fisheries, to below 0.05 seabirds per thousand hooks, based on current fishing levels. This represents a reduction of up to 90 per cent of the current seabird by-catch within the Australian Fishing Zone. Some members of the fishing industry have already made modifications to fishing equipment or practices, resulting in a decline in the by-catch of seabirds on long-lines.
As well as impacts directly associated with the activity of catching pelagic fish species, there is a potential impact of pollution associated with boats engaged in fishing, including fuel, oil spills and litter.
Petroleum and mineral exploration
Petroleum and mineral exploration activity in the pelagic zone includes seismic surveying methods to identify subterranean geological structures. Seismic surveys rely on data from the reflection or refraction of low frequency but high intensity sound energy from rock formations under the seabed (Swan, Neff and Young, 1994). These sound pulses are created artificially by using a variety of techniques, which produce bursts of high-energy sound directed towards the seabed (Swan, Neff and Young, 1994). AGSO advise that lethal effects of seismic surveying are limited to a narrow 1-2 metres range close to the energy source. However, seismic surveying may cause some behavioural changes in marine animals (Swan, Neff and Young, 1994).
Shipping
Currently there is very little commercial shipping in the area of the Reserve (Department of Transport and Regional Services, March 2001). There is a potential impact of pollution associated with boats engaged in shipping including fuel, oil spills and litter. However, the likelihood of this impact is low. Ships operating in Australian waters are bound by the rules governing waste from ships under MARPOL.
Table 1 Potential and existing pressures on the Tasmanian Seamounts
The table below lists potential and existing pressures on the environment of the Tasmanian Seamounts that will need to be managed. Potential pressures include those pressures exerted when the management regime is contravened. The management of these pressures in detailed in Sections 4.3 and 4.4 below.
Pressures Adverse impacts on values
Benthic Ecosystem500m below sea level to 100 m below seabed Pelagic EcosystemSea surface to 500 m below sea level
Trawling in Reserve Removal of benthic flora and fauna;
Damage to slow-growing corals;
Reduction in mobility of species among seamounts;
Sediment drift;
Reduction in abundance of fish. - Reduction in abundance of fish;
Pollution from boats
Risk High Medium
Trawling adjacent to the Reserve Accidental or deliberate encroachment;
Reduction in mobility of species among seamounts;
Sediment drift;
Reduction in size and abundance of fish. - Accidental or deliberate encroachment.
Risk High Low
Fishing for pelagic species Disturbance to predator/prey relationship;
Reduction in abundance of fish. - Disturbance to predator/prey relationship;
Pollution from boats;
Reduction in abundance of fish.
Risk Low Low
By-catch from pelagic fishing - Sea bird by catch
Risk Medium
Petroleum and mineral exploration and development Removal of benthic flora and fauna; Damage to slow-growing corals; Pollution associated with mining operations;
Petroleum and mineral exploration drilling could effect the faunal composition of benthic communities in the short-term over a localised area.. Interference with pelagic species from seismic testing; Pollution associated with mining operations;
Pollution from associated shipping including fuel, oil spills and litter
Risk Low Low
Research - Damage to habitat;
Removal of species. - Pollution from boats
Risk Low Low
Tourism and Recreation - Contact or damage from deep-sea submergible vessels. - Pollution from associated shipping, fuel, oil spills and litter.
Risk Low Low
Commercial shipping NA - Pollution from shipping, fuel, oil spills and litter.
Risk Low
Figure 2 – Prey Sharing Between Pelagic and Demersal Fish Due to Nocturnal Migration of Prey Species
This and the following chapters of the Plan deal with management of the pressures identified in section 2. Consistent with the Australian and New Zealand Environment and Conservation Council (ANZECC) best practice model in performance reporting (ANZECC, 1997), the following approach is used:
identify the overarching strategic objectives;
specify potential and actual pressures on identified conservation values (previous section);
develop management goals focused on balancing sustainable use with conservation; and,
develop management strategies for how to achieve the management goals.
Supplementary to the Plan, a performance assessment system is being designed, to complement the indicators identified in section 4.3, which will:
develop further performance measures to provide an indication of changes in the values and management of the Reserve;
set targets that will be used to determine whether or not management strategies are achieving management goals; and,
implement monitoring programs to collect appropriate information.
3.2 Legal Context
The Reserve is a ‘Commonwealth reserve’ under the EPBC Act. The administration, management and control of the Reserve are the function of the Director of National Parks (the Director). The Director’s functions and powers in relation to the Reserve have been delegated to the Marine and Water Division, Environment Australia.
The EPBC Act requires the Director to prepare management plans for Commonwealth reserves. Once prepared, the plans are provided to the Minister for the Environment and Heritage for approval. A management plan is a ‘disallowable instrument’, and when approved by the Minister must be tabled in each House of the Commonwealth Parliament. Unless disallowed by either the House of Representatives or the Senate on a notice of motion brought within 15 sitting days, the plan will then come into operation. A management plan for a Commonwealth reserve has effect for seven years, subject to being revoked or amended earlier by another management plan for the reserve.
The EPBC Act requires the Director to exercise the Director’s powers and perform the Director’s functions to give effect to the management plan for a
Commonwealth reserve, and the Commonwealth and other Commonwealth agencies must not perform functions or exercise powers inconsistently with the management plan (section 362).
A management plan for a Commonwealth reserve must provide for the protection and conservation of the reserve (section 367). Subsection 367(1) sets out the mandatory content of a management plan (see Attachment 3).
Certain matters must be taken into account in preparing a plan (subsection 368(3)). So far as relevant to the Reserve those matters are:
the regulation of the use of the reserve for the purpose for which it was proclaimed (in the case of the Reserve, the preservation of the area in its natural condition; and, the encouragement and regulation of the appropriate use, appreciation and enjoyment by the public);
the protection of the special features of the reserve, including objects and sites of biological, historical, palaeontological, archaeological, geological and geographical interest;
the protection, conservation and management of biological diversity and heritage within the reserve;
the protection of the reserve against damage; and,
Australian’s obligations under agreements between Australia and one or more countries relevant to the protection and conservation of biological diversity and heritage.
The EPBC Act prohibits certain acts from being done in a Commonwealth reserve except in accordance with a management plan (section 354(1)). These acts are:
Kill, injure, take, trade, keep or move a member of a native species;
Damage heritage;
Carry on an excavation;
Erect a building or other structure;
Carry out works; and,
Take an action for commercial purposes.
Mining operations are also prohibited unless the Governor-General has approved them and they are carried on in accordance with a management plan (section 355).
Actions that would, or are likely to, have a significant impact on a specified matter of ‘national environmental significance’ are subject to the assessment and approval provisions of the EPBC Act (Chapters 2 and 4). The matters of national environmental significance are:
World Heritage properties;
Wetlands of international importance (Ramsar wetlands);
Listed threatened species and ecological communities;
Listed migratory species;
Nuclear actions;
The marine environments; and,
Such further actions as are prescribed by the EPBC Regulations under the EPBC Act.
The Reserve is a ‘Commonwealth marine area’ for the purposes of the EPBC Act. The taking of an action in a Commonwealth marine area (including the airspace above it) that will, or is likely to, have a significant impact on the environment, or the taking of an action outside a Commonwealth marine area that will, or is likely to, have a significant impact on the environment in a Commonwealth marine area, will be subject to the assessment and approvals provisions of the EPBC Act.
Responsibility for compliance with the assessment and approvals provisions of the EPBC Act lies with persons taking relevant ‘controlled’ actions. A person proposing to take an action that the person thinks may be or is a controlled action must refer the proposal to the Minister for the Environment and Heritage for the Minister’s decision whether or not the action is a controlled action.
The EPBC Act also contains provisions that prohibit and regulate actions in relation to threatened species and ecological communities, migratory species, cetaceans (whales and dolphins) and other (listed) marine species (Part 13).
The establishment of the Reserve assists Australia in meeting its obligations under the Biodiversity Convention. The Convention requires parties to pursue the conservation of biological diversity and the sustainable use of its components. A key feature of the Convention is the establishment of a system of protected areas where special measures need to be taken to conserve biological diversity.
Management of the Reserve will also be consistent with obligations for migratory species listed under the Bonn Convention, International Whaling Convention, Convention for the Conservation of Southern Bluefin Tuna and UNCLOS (see Glossary).
Under UNCLOS, countries that are a party to the Convention have the obligation to protect and preserve the marine environment. The management of the Tasmanian Seamounts Marine Reserve will not impinge on the freedom of navigation contained in UNCLOS.
3.3 National Policy Context
3.3.1 Australia’s Oceans Policy
Australia’s Oceans Policy called for an accelerated development of the National Representative System of Marine Protected Areas (NRSMPA). The Oceans
Policy identified five new MPAs for accelerated declaration and management. The Tasmanian Seamounts Marine Reserve as one such MPA. This management plan fulfils the commitment made in Australia’s Oceans Policy.
3.3.2 National Representative System of Marine Protected Areas (NRSMPA)
The Reserve is part of the NRSMPA, which aims to establish and manage a comprehensive, adequate and representative system of marine protected areas and to contribute to the long-term ecological viability of marine systems, to maintain ecological processes and to protect Australia’s biological diversity at all levels (ANZECC, 1999). Marine protected areas within the NRSMPA have been established especially for the conservation of biological diversity and have secure status. Australia’s Oceans Policy reaffirms the Commonwealth Government’s commitment to the NRSMPA.
4. Managing Tasmanian Seamounts Marine Reserve
4.1 Overarching Strategic Objectives
The strategic objectives for the Reserve are designed to comply with the EPBC Act, the Strategic Plan of Action for the National Representative System of Marine Protected Areas: A Guide for Action by Australian Governments (ANZECC, 1999) and the purposes for which the Reserve was proclaimed. They form the basis for this Plan and are presented below.
Protect the unique and vulnerable benthic communities of the seamounts.
Protect the conservation values of the Reserve from human induced damage.
Manage the Reserve as part of the NRSMPA.
Contribute to the protection of the overall conservation values of the southern Tasmanian seamounts’ ecosystem.
Use as a research site to increase knowledge of seamount ecosystems generally and the endemic species of the southern Tasmanian seamounts.
4.2 Management zoning and IUCN categorisation
The EPBC Act requires that a management plan for a Commonwealth reserve must assign the reserve to one of the following IUCN protected area categories:
Strict nature reserve;
Wilderness area;
National park;
Natural monument;
Habitat/species management area;
Protected landscape/seascape; and,
Managed resource protected area.
The Tasmanian Seamount Marine Reserve is assigned by this Plan to IUCN category Ia: a strict nature reserve.
The EPBC Act provides that a management plan may divide a reserve into zones and assign each zone to an IUCN category, which may differ from the category to which the reserve is assigned.
To meet the objectives set out in section 4.1 of the Plan, the Reserve is divided into two vertically stratified zones: a Highly Protected Zone from a depth of 500 metres below sea level to 100 metres below the seabed, assigned to IUCN
category Ia (strict nature reserve); and a Managed Resource Zone, from the surface to a depth of 500 metres, assigned to IUCN category VI (managed resource protected area).
The EPBC Act requires that the provisions of a management plan for a Commonwealth reserve must not be inconsistent with the relevant ‘Australia IUCN reserve management principles’ for the IUCN category to which the reserve or any zone is assigned by the plan. Australian reserve management principles for all IUCN categories are set out in the EPBC Regulations (Schedule 8). The characteristics of, and principles applying to, IUCN Categories Ia and VI are reproduced at Attachment 4.
In accordance with the Australian IUCN reserve management principles for category Ia, the Highly Protected Zone will be managed primarily for scientific research and environmental monitoring. The primary objective is the full protection of the benthic biodiversity. Fishing will not be permitted in this zone by any method, nor will mining operations, including petroleum and mineral exploration and development. Access to the Reserve at or below a depth of 500 metres below the sea surface is prohibited without a permit. The Director made a determination to this effect under the National Parks and Wildlife Regulations on 2 August 1999 (Attachment 5). The EPBC Regulations provide that this prohibition is taken to be a determination made by the Director under the EPBC Regulations, and remains in force until it is revoked. Permits to access this area may be granted by the Director under Part 17 of the EPBC Regulations, in accordance with this Plan.
The Managed Resource Zone will be managed to ensure the long-term protection and maintenance of natural processes in the region while providing access, under permit or a declaration, to commercial pelagic fishing using non-trawl methods. There are currently no determinations in place relating to the Reserve waters above 500 metres below the surface.
Figure 3 - Vertical zonation of the Tasmanian Seamounts Marine Reserve
Cross section of water column and sea-bed showing management zoning and the IUCN category for each zone
4.3 Management Prescriptions and Strategies
The table below identifies the management goals, and the management prescriptions and strategies employed to meet those goals. The management goals work towards achieving the strategic objectives of the Reserve (section 4.1). The indicators outline the information needed to measure the performance of the management of the Reserve.
Highly Protected ZoneIUCN Ia Managed Resource ZoneIUCN VI
4.3.1 Protect the benthic ecosystems of the Reserve from adverse human impacts. - Fishing is prohibited.
Mining operations are prohibited. N/A – no benthic communities in this Zone. - Educate users of the conservation values and location of the Reserve.
Develop enforcement strategies (see 4.4 below)
Monitor efficacy of protection through a follow-up survey. - Indicators of health of benthos (growth, recruitment, maintenance of genetic diversity)
Water quality/turbidity
Vessel movements
4.3.2 Allow for sustainable harvesting of pelagic fish species while protecting the benthic ecosystems of the reserve from adverse human impacts. - Fishing is prohibited. - Fishing in the Southern Bluefin Tuna, and Eastern Tuna and Billfish Fisheries using pelagic longline methods may be carried on in accordance with fishing concessions issued by AFMA under the Fisheries Management Act 1991. A permit under the EPBC Regulations is not required.
Other commercial fishing may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with any relevant Commonwealth and State fishing permits etc.
Non-commercial fishing may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with any relevant Commonwealth and State fishing permits etc. - EA will work with AFMA, industry groups and individual operators to address by-catch and pollution issues in the Reserve; and examine ways to maintain a record of catch and effort in the Reserve, and the interpretation of those data in terms of sustainability. - Number of licences issued
Catch records and bycatch records
Presence of fishing debris on seamounts
4.3.3 Minimise the risk of accidental or deliberate encroachment on the Reserve by trawling vessels. - Trawling is prohibited - Trawling is prohibited - EA will work closely with AFMA, industry groups and individual operators to ensure all fishers are aware of the location of the Reserve and the significance of its primary conservation values.
Vessels within the South East Trawl Fishery permitted by AFMA to target orange roughy are required to have a Vessel Monitoring System fitted. The movements of these vessels are monitored by AFMA, and EA will develop arrangements for AFMA to monitor for boats illegally entering the Reserve. - Number of vessels entering Reserve.
Number of communication products with information for trawl fishers highlighting the location of the Reserve and the management strategies indicated in this Plan
VMS records
4.3.4 Increase knowledge of the natural environments, for scientific purposes and management improvement of the seamounts within the Reserve. - EA will liaise with research organisations and other stakeholders in the development of a research and monitoring program for the Reserve to increase scientific knowledge and as part of a performance assessment system. The research program may include:
Gaining a better understanding of the relationship between the benthic and pelagic ecosystems in the Reserve; and,
If feasible, investigating potential impacts on the Reserve of off-Reserve trawling. - Number of targeted scientific surveys
Number of targeted research programs
Number of reports published
4.3.5 Ensure that research activities have a minimal ecological impact on the Reserve. - Research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations.
Fisheries research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with relevant Commonwealth and State fishing permits. - Research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations.
Fisheries research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with relevant Commonwealth and State fishing permits. - Develop a research and monitoring program for the Reserve to gain long-term monitoring information by the use of non-invasive research techniques. - Indicators of health of benthos (growth, recruitment, maintenance of genetic diversity)
Presence of lost photographic and research equipment debris
4.3.6 Implement an effective compliance and enforcement system that supports the protection of the Reserve - EA will develop a compliance and enforcement plan for the Reserve, which includes:- working with AFMA to determine compliance and enforcement arrangements relating to pelagic fishing and trawling- working with other Commonwealth agencies including Customs and Defence to monitor the level of fishing and other boating activity- maximise voluntary compliance through involvement and education- task Coastwatch to provide surveillance flights over the Reserve. - Number of violations detected(VMS data)
Number of successful prosecutions
Compare enforcement measures with impact measures, eg coral damage etc
4.3.7 Develop an education and communication system that generates support for the Reserve - EA will develop a communication strategy for the Reserve.
EA will work closely with AFMA, industry groups and individual operators to ensure all fishers are aware of the location of the Reserve, the significance of its primary conservation values and its management regime. - Number of publications
Frequency of website and pamphlet updates
Effectiveness indicators, eg public response, website links.
4.3.8 Ensure complementarity between this Plan and other management arrangements Participate in review of:
MARPOL and other international agreements;
Threat Abatement Plans and other domestic strategies. - Number of comments from EA on reviews/amendments of other management arrangements relevant to the Reserve.
4.4 Activity Management
As noted earlier in the Plan subsection 354(1) of the EPBC Act prohibits certain actions being taken in a Commonwealth reserve except in accordance with a management plan. The EPBC Regulations also prohibit a range of activities in a Commonwealth reserve. Some of the activities fall within subsection 354(1) of the Act. Activities that are prohibited only by the Regulations may be carried on in accordance with a permit issued by the Director under Part 17 of the Regulations, or if carried out in accordance with, a management plan.
Activities that are subject to both subsection 354(1) of the EPBC Act and the EPBC Regulations include commercial and non-commercial fishing, and research that involves killing, injuring, taking, keeping or moving a member of a native species (research that does not include these actions is still subject to the EPBC Regulations). These activities may only be carried on in accordance with a management plan (which may provide for permits to be issued).
Subsection 354(1) is a ‘civil penalty provision’. The prescribed maximum penalty for contravention of subsection 354(1) is 500 penalty units for an individual and 5,000 penalty units for a body corporate. A penalty unit is $110 at the time of preparation of this Plan. Contravention of the EPBC Regulations is an offence. Maximum penalties may be up to 50 penalty units.
Section 355 of the EPBC Act prohibits mining operations (which include petroleum and mineral exploration and development) unless the Governor-General has approved the operations and they are carried on in accordance with a management plan.
Fishers operating in the Southern Bluefin Tuna Fishery and Eastern Tuna and Billfish Fishery using pelagic longline methods can carry on their fishing activities in accordance with fishing concessions issued by AFMA under the Fisheries Management Act 1991 Fishers operating in these two fisheries do not require a separate permit under EPBC Regulations as scientific advice indicates that the operation of these two fisheries will not have a significant impact on the benthic ecosystem.
Other commercial and non-commercial fishing may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and any relevant Commonwealth and State fishing rights, licences or permits. Fishing using trawl methods and all mining operations will not be allowed in the Reserve.
The table below sets out the management arrangements for particular activities in the Reserve. It is based on the previous table (Table 4.3). The prescriptions in this table do not exclude any requirement for an activity to be authorised under any other relevant Commonwealth, State or Territory legislation relating to the activity.
Activity
Highly Protected Zone<br>IUCN Ia
Managed Resource Zone<br>IUCN VI
Enforcement/Penalty
4.4.1 Commercial Fishing
Prohibited
Fishing in the Southern Bluefin Tuna, and Eastern Tuna and Billfish Fisheries using pelagic longline methods may be carried on in accordance with fishing concessions issued by AFMA under the Fisheries Management Act 1991. A permit under the EPBC Regulations is not required.Trawl fishing is prohibitedOther commercial fishing may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with any relevant Commonwealth and State fishing permits.
EnforcementEA has a cooperative arrangement with Coastwatch and the Australia Defence Forces to monitor fishing and other boating activity in the Reserve. The development of a cooperative approach with AFMA to monitor fishing in the Reserve is being considered.<br>Penalties<br>s 354(1) EPBC Act – 500 penalty units for an individual and 5,000 penalty units for a body corporate.<br>r.12.34 EPBC Act Regulations – 50 penalty units
4.4.2 Non-commercial fishing
Prohibited
Non-commercial fishing may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with relevant Commonwealth and State fishing permits.
Enforcement<br>EA has a cooperative arrangement with Coastwatch, AFMA and the Australia Defence Forces to monitor fishing and other boating activity in the Reserve.<br> <br> <br>Penalty<br>s354(1) EPBC Act – 500 penalty units for an individual and 5,000 penalty units for a body corporate.<br>r.12.35 EPBC Regulations – 30 penalty units.
4.4.3 Scientific research (including scientific research that involves the taking of native species)<br>
Research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations.Fisheries research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with relevant Commonwealth and State fishing permits.
Research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations.Fisheries research may be carried on in accordance with a permit issued by the Director under the EPBC Regulations and in accordance with relevant Commonwealth and State fishing permits.
Penalty<br>s354(1) EPBC Act – 500 penalty units for an individual and 5,000 penalty units for a body corporate.<br>r.12.10 EPBC Regulations – 20 penalty units.
4.4.4 Petroleum and mineral exploration and development
Mining operations are prohibited.
Mining operations other than exploration are prohibited.Petroleum and mineral exploration may be allowed subject to approval from the Governor-General under s355 EPBC Act.
4.4.5 Commercial shipping
Allowed as per the freedom of navigation contained in the UNCLOS.
4.4.5 Other commercial activities
Prohibited
Other commercial activities may be carried on in accordance with a permit issued by the Director under the EPBC Regulations.
Penalty<br>S354(1) EPBC Act – 500 units for an individual and 5,000 penalty units for a body corporate<br> <br>r.12.36 EPBC Regulations - 30 penalty units.
5. Reviewing this Plan
5.1 Performance assessment
A performance assessment framework is provided in the Strategic Plan of Action for the National Representative System of Marine Protected Areas – A Guide for Action by Australian Governments (ANZECC, 1999) and the ANZECC Best Practice in Performance Reporting in Natural Resource Management (ANZECC, 1997). The performance assessment program for the Tasmanian Seamounts Reserve will be based on this Management Plan including:
legislative framework;
strategic objectives;
analysis of potential pressures on the conservation values of the Reserve;
management goals; and,
management strategies.
Initial performance indicators have been developed (see section 4.3) as part of the performance assessment process. The performance and the management of the Reserve will be assessed through development and implementation of:
further performance measures;
targets;
data collection techniques and,
data analyses.
A mechanism by which the results of the performance assessment are fed back into the process of making ongoing management decisions will be a key component of this program.
EA will liaise with research organisations and other stakeholders in the development and implementation of a performance assessment system that will include:
- monitoring activities and compliance in the Reserve;
- monitoring the status of the ecosystems of the Reserve with non-intrusive techniques; and,
- further survey work to build on existing knowledge of conservation values of the Reserve.
EA will liaise with AFMA regarding performance measures and monitoring programs to assist with the management of pelagic fishing in the Managed Resource Zone and trawl fishing adjacent to the Reserve.
In selecting the performance indicators in section 4.3 and for future indicators, preference is given to those which:
provide early warning of potential threats (ie they should be sensitive);
function as triggers for clear, predetermined management actions (dynamic feedback mechanism);
are cost effective, simple, meaningful and practical to implement and interpret;
are easy to monitor, assess and report on;
are established early in the value-pressure analysis;
are scientifically credible and statistically robust; and,
can essentially be quantitative, within control and can be surrogates.
For the Tasmanian Seamounts Marine Reserve the identification of performance indicators is based around the following issues and indicator groups:
protected species;
habitat extent;
habitat quality;
resource use;
water/sediment quality;
integrated management; and,
ecosystem level processes.
5.2 Reviewing the Plan
This management plan will operate for seven years unless revoked or amended sooner by another management plan. Performance assessment will be carried out during the life of this Plan. Results from the performance assessment program will be used to undertake a review of the management plan approximately two years before its expiry. The results of the review will be used in the development of the next management plan for the Tasmanian Seamounts Marine Reserve.
References
ANZECC, 1999. Strategic Plan of Action for the National Representative System of Marine Protected Areas – A Guide for Action by Australian Governments. Australian and New Zealand Environment and Conservation Council, Taskforce on Marine Protected Areas: Canberra.
ANZECC, 1997. Best Practice in Performance Reporting in Natural Resource Management. Benchmarking and Best Practice Program, Australian and New Zealand Environment and Conservation Council, Working Group on National Parks and Protected Area Management: Canberra.
Bax, N.J. 1996. Stock Assessment Report 1996: Orange Roughy (Hoplostephus atlanticus). Compiled for the South East Fishery Stock Assessment Group.
Bulman, C.M. and Koslow, J.A. 1992. ‘Diet and food consumption of a deep-sea fish, orange roughy Hoplostethus atlanticus (Pisces: Trachichthyidae) off southeastern Australia.’ Marine Ecology Progress Series 82: 115-129.
Cobby, G.L. and Craddock, R.L. 1999. ‘Western Australian Government decision-making criteria involved in the regulation of drilling fluids offshore.’ APPEA Journal. 600-605.
Collie, J. S., Escanero, G.A. and Valentine, P.C. 1997. ‘Effects of bottom fishing on the benthic megafauna of Georges Bank.’ Marine Ecology. Progress Series. 155:159-172.
Commonwealth of Australia, 2000a. Fishery Status Report: Resource Assessments of Australian Commonwealth Fisheries 1999. Bureau of Rural Sciences: Canberra.
Commonwealth of Australia, 2000b. Commonwealth Policy on Fisheries By-catch. Commonwealth of Australia: Canberra.
Commonwealth of Australia, 1999a. South East Fishery Trawl Sector 2000 Management Arrangements. AFMA: Canberra.
Commonwealth of Australia, 1999b. South East Non-Trawl Fishery 2000 Management Arrangements. AFMA: Canberra.
Commonwealth of Australia, 1998a. South East Trawl Fishery Management Plan 1998. AFMA: Canberra.
Commonwealth of Australia. 1998b. The Southern Shark Fishery 1997. Southern Shark Fishery Assessment Group: Canberra.
Commonwealth of Australia, 1998c. Threat Abatement Plan for the Incidental Catch (or By-catch) of Seabirds During Oceanic Long-line Fishing Operations. Environment Australia: Canberra.
Commonwealth of Australia, 1995. Southern Bluefin Tuna Fishery Management Plan 1995. AFMA: Canberra.
Commonwealth of Australia, 1994. The South East Fishery. Bureau of Resource Sciences: Canberra.
Daan, R., Booij, K., Mulder, m. and van Weerlee, E.M. 1996. ‘Environmental effects of a discharge of drill cuttings contaminated with ester-based drilling muds in the North Sea.’ Environmental Toxicology and Chemistry. 16(10: 1709-1722.
Fager, E. W. and McGowan, J.A. 1963. ‘Zooplankton species groups in the North Pacific.’ Science 140: 453-460.
Goñi, R. 1998 ‘Ecosystem effects of marine fisheries: an overview.’ Ocean and Coastal Management. 40:37-64.
Grigg, R.W. 1993. ‘Precious coral fisheries of Hawaii and the U.S. Pacific islands.’ Marine Fisheries Review 55 (2): 50-60.
Hill, P.J., Exon, N.F and Koslow, J.A. 1997. Multibeam sonar mapping of the seabed off Tasmania: results for geology and fisheries. Third Australasian Hydrographic Symposium. Maritime Resource Development, Symposium Papers, Special Publication 38: 9-19.
Jones, J. B. 1992. ‘Environmental Impact of trawling on the seabed: a review.’ New Zealand Journal of Marine and Freshwater Resources. 26:59-67.
Koslow, J. A. 1993.’ Community structure in North Atlantic deep-sea fishes.’ Progress in Oceanography 31: 321-338.
Koslow, J. A. 1994. Assessment of Conservation and Management Requirements for Southern Seamounts. CSIRO Division of Fisheries: Hobart.
Koslow, J. A. 1997. ‘Seamounts and the ecology of deep-sea fisheries.’ American Scientist 85: 168-176.
Koslow, J. A., Bulman, C. M. and Lyle, J. M. 1994. ‘The mid-slope demersal fish community off southeastern Australia. Deep-Sea Research 41:113-141.
Koslow, J.A. and Gowlett-Holmes, K. 1998. The Seamount Fauna Off Southern Tasmania: Benthic Communities, Their Conservation and Impacts of Trawling. Final Report to Environment Australia and the Fisheries Research and Development Corporation: Canberra.
Koslow, J.A., Gowlette-Holmes, K., Lowry, J., O’Hara, T., Poore, G. and Williams, A. In press. ‘The seamount benthic macrofauna off southern Tasmania: community structure and impacts of trawling.’ Marine Ecology Progress Series.
Koslow, J.A., Gunn, J. and Rintoul, S.R. 1998. Deepwater Ecosystem Structure and the Management of a Proposed Deepwater Marine Reserve South of Tasmania. Report to Environment Australia: Canberra.
Richer de Forges, B., Koslow, J. A. and Poore, G. 2000. ‘Diversity and endemism of the benthic seamount fauna in the southwest Pacific.’ Nature. 405:944-947.
Rintoul, S.R., Donguy, J.R. and Roemmich, D.H. 1997. ‘Seasonal evolution of upper ocean thermal structure between Antarctica and Tasmania.’ Deep-Sea Research 44: 1185-1202.
Rintoul, S.R. and Bullister, J.L. 1999. ‘A late winter hydrographic section from Tasmania to Antarctica.’ Deep-Sea Research Part 1: Oceanographic Research Papers (46) 8: 1417-1454.
Swan, J.M., Neff, J.M, and Young, P.C. 1994. Environmental Implications of Offshore Oil and Gas Development in Australia. Australian Petroleum Exploration Association Ltd: Sydney.
Glossary of terms, concepts, legislation, international agreements and abbreviations
AFMA: Australian Fisheries Management Authority
Agreement on Fisheries between the Government of Australia and the Government of Japan (1979)
Any proposals for fishing in the area of the Reserve by Japanese vessels would be assessed on a case by case basis in the context of the terms of an annual agreement negotiated with Japan in accordance with the overarching ‘Agreement on Fisheries between the Government of Australia and the Government of Japan 1979’. It should be noted that no annual agreement has been reached with Japan on access to any part of the Australian Fishing Zone since 1996.
AGSO: Australian Geological Survey Organisation (Geoscience Australia).
ANZECC: Australian and New Zealand Environment and Conservation Council. This Council has been replaced by the National Resource Management Ministerial Council (NRM Ministerial Council).
Australian Fishing Zone (AFZ): Established by the Fisheries Management Act 1991, comprises waters adjacent to Australia and its external territories (excluding Torres Strait and the Antarctic Territories) which extend from defined baselines to 200 nautical miles seawards but not including coastal waters or excepted waters under the Act. Within the AFZ, Australia exercises jurisdiction over all Australian and foreign fishing.
Benthic: Refers to marine organisms that live on or near the ocean floor.
Biodiversity Convention: Convention on Biological Diversity (Rio de Janeiro, 5 June 1992). The Convention requires parties to pursue the conservation of biological diversity and the sustainable use of its components. A key feature of the Convention is the establishment of a system of protected areas where special measures need to be taken to conserve biological diversity.
Bonn Convention: Convention on the Conservation of Migratory Species of Wild Animals (Bonn, 23 June 1979).
By-catch: Non-target species taken incidentally during fishing activities.
Coastal waters: Waters of the sea within 3 nautical miles of the territorial sea baselines established under the Seas and Submerged Lands Act 1973. More particularly they are waters, rights in respect of which have been vested in a State by section 4 of the Coastal Waters (State Title) Act 1980 or in the Northern Territory by section 4 of the Coastal Waters (Northern Territory Title) Act 1980.
Commonwealth waters: Waters of the sea that are generally between 3 and 200 nautical miles of the territorial sea baselines established under the Seas and Submerged Lands Act 1973. More particularly they are waters of the sea inside the seaward boundary of the Exclusive Economic Zone or over the continental shelf, except waters, rights in respect of which have been vested in a State by section 4 of the Coastal Waters (State Title) Act 1980 or in the Northern Territory by section 4 of the Coastal Waters (Northern Territory Title) Act 1980, and waters within the limits of a State or the Northern Territory.
Convention for the Conservation of Southern Bluefin Tuna:Convention for the Conservation of Southern Bluefin Tuna (Canberra, 10 May 1993). Management of fishing for southern bluefin tuna within the Reserve will be in accordance with obligations established under the Convention, to which Australia is a party. The objective of the Convention is to ensure, through appropriate management, the conservation and optimum use of southern bluefin tuna. Effect is given to these obligations through the existing domestic management of the fishery.
CSIRO: Commonwealth Scientific and Industrial Research Organisation
Danish seine: Trawling method used by relatively small boats in shallow waters (up to 200 metres).
Demersal fish: Fish that are closely associated with the ocean floor and are normally caught on or near the seabed.
Director: Director of National Parks under section 514A of the EPBC Act.
Environment Australia or EA: Commonwealth Department of the Environment and Heritage (or any Department that succeeds to the functions of the Department).
Endemic: Refers to organisms whose distribution is restricted to a particular locality.
Ecologically Sustainable Development (ESD): Using, conserving and enhancing the communities resources so that ecological processes, on which life depends, are maintained and the total quality of life, now and in the future, can be increased (Commonwealth of Australia, 1992).
EPBC Act: Environment Protection and Biodiversity Conservation Act 1999
EPBC Regulations: Environment Protection and Biodiversity Conservation Regulations 2000 made under the EPBC Act
Exclusive Economic Zone (EEZ): Declared under the Seas and Submerged Lands Act 1973 in relation to Australia and its external territories in accordance with UNCLOS. The EEZ comprises the area that extends from 12 nautical miles to 200 nautical miles seaward of the territorial sea baselines established under the Seas and Submerged Lands Act 1973, except where it has been pulled back to take account of maritime delimitations (or potential delimitations) with other countries. Australia has sovereign rights under UNCLOS for the purposes of exploring and exploiting, and conserving and managing the natural resources, and with regard to other activities for the economic exploitation and exploration of the EEZ.
International Whaling Convention: International Convention for the Regulation of Whaling (Washington, 2 December 1946). Australia is a founding member of the International Whaling Commission that was set up under the Convention. The purpose of the Convention at the time was to provide for the proper conservation of whale stocks and thus make possible the orderly development of the whaling industry. The objective of the Australian Government is to achieve a global ban on commercial whaling and worldwide protection of all cetaceans.
IUCN: World Conservation Union (previously International Union for the Conservation of Nature and Natural Resources)
National Representative System of Marine Protected Areas (NRSMPA)
The NRSMPA aims to establish and manage a comprehensive, adequate and representative system of marine protected areas and to contribute to the long-term ecological viability of marine systems, to maintain ecological processes and to protect Australia’s biological diversity at all levels (ANZECC, 1999).
NPWC Act: National Parks and Wildlife Conservation Act 1975
Pelagic fish: Fish that are not closely associated with the ocean floor and are normally caught near the sea surface or in the water column.
Pelagic long-lining: Fishing method consisting of a mainline with many attached branch lines, each fitted with one or more baited hooks or artificial lures. The lines are suspended above the seabed by floats at the sea surface.
Convention on the Prevention of Marine Pollution: International Convention on the Prevention of Marine Pollution by Dumping of Wastes and Other Matter (London, Mexico City, Moscow, Washington, 29 December 1972) encourages nation states to manage and minimise the impact of marine pollution. The Environment Protection (Sea Dumping) Act 1981 gives effect to this Convention by controlling, regulating and monitoring sea dumping operations.
UNCLOS: United Nations Convention on the Law of the Sea (Montego Bay, 10 December 1982).
Attachment 1 - Proclamation of the Tasmanian Seamounts Marine Reserve
(Source: Koslow and Gowlett-Holmes, 1998: 33-34, 37-46)
Fish Species List
Squalidae
Centroscymnus plunketi
Etmopterus granulosus
Etmopterus sp.B
Synaphobranchidae
Diastobranchus capensis
Simenchelys parasiticus
Lipogenyidae
Lipogenys gillii
Polyacanthanotidae
Polyacanthanotus cf rissoanus
Bathylagidae
Melanolagus berycoides
Phosichthyidae
Cyclothone sp.
Sternopthychidae
Sternoptyx sp.
Myctophidae
Lampanyctus australis
Muraenolepididae
Muraenolepis cf marmoratus
Muraenolepis sp.B
Moridae
Antimora cf rostrata
Lepidion schmidti
Lepidion microcephalus
Laemonema cf globiceps
Paralaemonema nudirostre
Paralaemonema sp. (Last & Gomon M/S)
Paralaemonema sp.A
Paralaemonema sp.C
Paralaemonema sp.D (elongate)
Bythitidae
Cataetyx sp.B (brown)
Cataetyx sp.C
Cataetyx sp.D
Cataetyx sp.E
Macrouridae
Caelorinchus fasciatus
Caelorinchus kaiyomaru
Caelorinchus matamua
Coryphaenoides subserrulatus
Macrurus carinatus
Hymenocephalus sp.
?Nezumia sp.
?Ventrifossa sp.
Trachichthyidae
Hoplostethus atlanticus
Oreosomatidae
Neocyttus sp.A
Invertebrate Species List
Cnidaria – Hydrozoa
Tiarannidae
Stegolaria irregularis (new Australian record)
Stegolaria (new species)
Lafoeidae
Acryptolaria arboriformis
Zygophylax (new species)
Haleciidae
Halecium ?beanii
Halecium ‘ralphi’ (new species)
Halecium (new species 2)
Sertulariidae
Symplectoscyphus commensalis (new Australian record)
Symplectoscyphus (new species)
Sertularia (new species 1)
Sertularia (new species 2)
Aglaopheniidae
Lytocarpia (new species)
Gymnangium (new species)
Stylasteridae
Stylaster eguchii (new Australian record)
Cnidaria – Octocorallia
Acanthogorgiidae
Acanthogorgia sp.
Alcyoniidae
Anthomastus sp.
Anthothelidae
Anthothela sp. (genus is new Australian record, possible new species)
Coralliidae
Corallium sp. (genus is new Australian record, possible new species)
Chrysogorgiidae
Chrysogorgia octagonus (new Australian record)
Chrysogorgia sp.1
Chrysogorgia sp.2
Chrysogorgia sp.3
Chrysogorgia sp.4
Pleurogorgia (new species)
Isididae
Isidella (new species 1)
Isidella (new species 2)
Lepidisis sp.
Primnoisis s.s. cf antarctica
Primnoisis sp.2
New genus, new species, cf Chathamisis
Paragorgiidae
Paragorgia sp.
Plexauridae
Austromuricea(?) sp. (genus is new Tasmanian record or possibly new genus, possible new species)
Paramuricea sp.
Primnoidae
Callozostron sp.
Calyptrophora sp.1
Calyptrophora sp.2
Narella sp.1
Narella sp.2
Narella sp.3
Narella sp.4
Paracalyptrophora sp.
Parastenella sp.1
Parastenella sp.2
Thouarella sp.1
Thouarella sp.2
Tokoprymno maia (new Australian record)
Unidentified genus and species (probably new genus and species)
Cnidaria – Anthozoa
Scleractinia
Caryophylliidae
Caryophyllia diomedeae
Desmophyllum dianthus
Solenosmilia variabilis
Annelida – Polychaeta
Aphroditidae
Laetmonice cf producta
Eunicidae
Eunice cf prognatha (new Australian record or new species)
Eunice sp.2 (may be juveniles of sp.1)
Eunice cf antarctica
Euphrosinidae
Euphrosine cf setosissima (new Australian record or new species)
Glyceridae
Glycerella magellanica (new Australian record)
Glycera tesselata
Hesionidae
Gyptis (Oxydromus) pacificus (new Australian record)
Phyllodocidae
Eulalia (Notalia) sp. (genus is new Australian record, possible new species)
Nereididae
Nicon maculata
Polynoidae
Hololepida oculata (new Australian record)
?Hermadion sp.
?Harmothoe cf globulosa
Unidentified genus and species 2
Unidentified genus and species 3
Unidentified genus and species 4
Unidentified genus and species 5
Unidentified genus and species 6
Unidentified genus and species 7
Unidentified genus and species 8
Unidentified genus and species 9
Unidentified genus and species 10
Unidentified genus and species 11
Serpulidae
Unidentified genus and species
Syllidae
Autolytus maclearanus (new Australian record)
Eusyllis kerguelensis (new Australian record)
Typosyllis sp.
Terebellidae
Thelepus sp.
Nicolea cf maxima
?Eupolymnia sp. (probable new species)
Brachiopoda – Articulata
Terebratellidae
?Jaffaia jaffaensis
Bryozoa – Cyclostomata
Annectocymidae
Entalophoroecia sp.
Bryozoa – Cheilostomata
Bitectiporidae
?Parkermavella (new species)
Catanicellidae
Costaticella solida
Pterocella scutella
Celleporidae
New genus, new species
Calloporidae
Corbulella cf translucens (new Australian record of new species)
Farciminariidae
Didymozoum simplex
Flustridae
Gregarinidra (new species)
Microporellidae
Fenestrulina (new species)
Phidoloporidae
Reteporella (new species)
Porinidae
Haswelliporina multiaviculata (new Australian record)
Romancheinidae
Escharella (new species)
Schizoporellidae
Unidentified genus and species
Smittinidae
Smittoidea cf magna (New Australian record or new species)
Mollusca – Polyplacophora
Mopaliidae
Placiphorella (new species, genus is new Australian record)
Mollusca – Gastropoda
Calliostomatidae
Unidentified genus and species
Capulidae
Unidentified genus and species
Ranellidae
Frusitriton magellanicus retiolus
Buccinidae
Unidentified genus and species
Mollusca – Bivalvia
Limidae
Acesta (new species, genus is new Tasmanian record)
Pectinidae
Chalmys famigerator
Propeamussidae
Delectopecten fosterianum
Pulvinitidae
Pulvinites exampla (new Tasmanian record)
Mollusca – Cephalopoda
Octopodidae
Benthoctopus (new species, genus is new Australian record)
Crustacea – Cirripedia
Calanticidae
Scillaelepas (new species)
Pachylasmatidae
Hexelasma (new species)
Poecilasmatidae
Poecilasma (new species)
Verrucidae
Altiverruca sp. (possible new species)
Crustacea – Mysidacea
Lophogastridae
Gnathophausia sp.
Crustacea – Ostracoda
Cypridinidae
Doloria (new species 1)
Doloria (new species 2)
Doloria (new species 3)
Crustacea – Isopoda
Aegidae
Aega sp.1 (possible new species)
Aega sp.2 (possible new species)
Aega cf beni (new Australian record or new species)
Aega sp.4 (possible new species)
Rocinela sp. (possible new species)
Cirolanidae
Cirolana (new species)
Natatolana (new species 1)
Natatolana (new species 2)
Cymothoidae
Ceratothoa sp.
Serolidae
Acutiserolis (new species)
Crustacea – Amphipoda
Amathillopsidae
New genus, new species
Hirondelleidae
Hirondellea (new species 1)
Hirondellea (new species 2)
Lysianassidae
Orchomella gerulicorbis (new Australian record)
Parschisturella (new species)
Schisturella (new species)
Tryphosella (new species 1)
Tryphosella (new species 2)
New genus, new species 1
New genus, new species 2
Scopelocheiridae
Paracallisoma (new species)
Uristidae
Koroga megalops (new Australian record)
Stephonyx (new species)
Crustacea – Decapoda – Stenopodidea
Spongicolidae
Spongicaris (new species, genus is new Australian record)
Crustacea – Decapoda – Caridea
Campylonotidae
Campylonotus rathbunae
Crangonidae
Paracrangon (new species, genus is new Australian record)
Hippolytidae
Eualus sp. (genus is new Australian record, possible new species)
Lebbeus sp.1 (new species or new Australian record)
Lebbeus sp.2 (new species or new Australian record)
Leontocaris amplectipes (new Tasmanian record)
Leontocaris bulga (new species)
Leontocaris yarramundi (new species)
Merhippolyte chacei (new Tasmanian record)
Thoralus sp. (genus is new Australian record, possibly new species)
Nematocarcinidae
Lipkius holthuisi
Nematocarcinus sigmoides
Oplophoridae
Acanthephyra quadrispinosa
Crustacea – Decapoda – Palinura
Polychelidae
Polycheles sp.
Crustea – Decapoda – Anomura
Chirostylidae
Gastroptychus sp. (possible new species)
Uroptychus australis
Uroptychus sp.1 (possible new species)
Uroptychus sp.2 (possible new species)
Galatheidae
Munida (new species 1)
Munida (new species 2)
Munida (new species 3)
Munida (new species 4)
Munidopsis sp.1 (possible new species)
Munidopsis sp.2 (possible new species)
Paguridae
Michelopagurus (new species)
Propagurus profundis
New genus, new species
Parapaguridae
Parapagurus sp. (possible new species)
Sympagurus dimorphus
Sympagurus villosus (new Tasmanian record)
Lithodidae
Lithodes longispina
Neolithodes brodei
Paralomis cf birsteini (new Australian record or new species)
Paralomis cf phrixa (new Australian record or new species)
Crustacea – Decapoda – Brachyura
Goneplacidae
Carcinoplax meridionalis
Atelecyclidae
Trichopeltarion(?) (new species)
Echinodermata – Crinoidea
Bourgueticrinidae
Phrynocrinus nudus (new Australian record)
Porphyrocrinus sp. (genus is new Australian record, possible new species)
Hyocrinidae
Anachalpsycrinus (genus is new Australian record, new species)
Pentacrinidae
Diplocrinus sibogae (new Australian record)
Unidentified genus and species (probably new genus and species)
Echinodermata – Asteroidea
Asteriidae
Australiaster dubia
Cosmasterias dyscrita
Smilasterias clarkailsa (new Australian record)
Asterinidae
Anseropoda sp.
Benthopectinidae
Benthopecten sp.1
Benthopecten sp.2
Brisingasteridae
Novodinia cf australis
Novodinia sp.2 (juveniles)
Brisingidae
Brisinga sp. (genus is new Australian record)
Ctenodiscididae
Ctenodiscus orientalis
Echinasteridae
Henricia sp.1
Henricia sp.2
Freyellidae
Freyella sp. (genus is new Australian record)
Goniasteridae
Ceramaster patagonicus (new Tasmanian record)
Hippasteria trojana (new Tasmanian record)
Unidentified genus and species 1
Unidentified genus and species 2
Hymenodiscidae
New genus, new species
Odonasteridae?
Unidentified genus and species
Pterasteridae
Pteraster sp.
Solasteridae
Crossaster multispinus
Lophaster sp.
Echinodermata – Ophiuroidea
Asteronychidae
Asteronyx loveni
Asteroschematidae
Ophiocreas sibogae
Gorgonocephalidae
Astrothorax waitei
Gorgonocephalus cf pustulatum
Ophiomyxidae
Ophiomyxa australis
Ophioscolex sp. (genus is new Tasmanian record, possible new species)
Ophiuridae
Ophiocten hastatum
Ophiomisidium irene (new Australian record)
Ophiura (O.) flagellata
Ophiura (O.) sp. (possible new species)
Ophiura (Ophiuroglypha) irrorata
Ophiura (Ophiuroglypha) jejuna
Ophiurolepis accomadata (first record since original description)
New genus, new species
Ophiolepididae
Opiomusium lymani
Ophiacanthidae
Ophiacantha denuispina (new Australian record) (brooding species)
Ophiacantha rosea
Ophiacantha spectabilis (new Australian record)
Ophiacantha cf vepractica (new Australian record or possible new species)
Ophiacantha vivipara (new Australian record)
Ophiacantha yaldwyni
Ophiacantha sp.1 (possible new species)
Ophiacantha sp.2 (new species or new Australian record)
Ophiacantha spp (possibly juveniles of more than 1 species)
Ophiocamax applicatus (First record since original description)
Ophiolimna cf bardii (new Australian record or possible new species)
Ophiomitrella conferta
Ophiomitrella sp.1 (new Australian record or new species)
Ophiomitrella sp.2
Ophioplinthaca incisa
Ophioplinthaca (new species)
Ophiurothamnus stultus
Ophiactidae
Ophiactis abyssicola
Ophiactis plana
Amphiuridae
Amphioplus sp. (possible new species)
Ophiotrichidae
Ophiothrix aristulata
Echinodermata – Echinoidea
Cidaridae
?Aporocidaris sp.
Echinidae
Dermechinus horridus
Gracilechinus cf multidentatus
Pedinidae
?Caenopedina sp.
Echinodermata – Holothuroidea
Laetmogonidae
Laetmogone (new species)
Synallactidae
Synallactes challengeri (new Tasmanian record)
Attachment 3 – Subsection 367(1) EPBC Act
Mandatory content
(1) A management plan for a Commonwealth reserve must provide for the protection and conservation of the reserve. In particular, the plan must:
(a) assign the reserve to an IUCN category (whether or not a Proclamation has assigned the reserve or a zone of the reserve to that IUCN category); and
(b) state how the reserve, or each zone of the reserve, is to be managed; and
(c) state how the natural features of the reserve, or of each zone of the reserve, are to be protected and conserved; and
(d) if the Director holds land or seabed included in the reserve under lease – be consistent with the Director’s obligations under the lease; and
(e) specify any limitation or prohibition on the exercise of a power, or performance of a function, under the Act in or in relation to the reserve; and
(f) specify any mining operation, major excavation or other work that may be carried on in the reserve, and the conditions under which it may be carried on; and
(g) specify any other operation or activity that may be carried on in the reserve; and
(h) indicate generally the activities that are to be prohibited or regulated in the reserve, and the means of prohibiting or regulating the,; and
(i) indicate how the plan takes account of Australia’s obligations under each agreement with one or more other countries that is relevant to the reserve (including the World Heritage Convention and the Ramsar Convention, if appropriate).
Attachment 4 – Characteristics and Management Principles of Relevant IUCN Protected Area Management Categories
(Environment Protection and Biodiversity Conservation Act, 1999 (s.347) and Environment Protection and Biodiversity Regulations 2000 Schedule 8)
STRICT NATURE RESERVE – IUCN CATEGORY IA
Characteristics: the Commonwealth reserve or zone contains some outstanding or representative ecosystems, geological or physiological features or species.
Australian IUCN reserve management principles:
The reserve or zone should be managed primarily for scientific research or environmental monitoring based on the following principles.
Habitats, ecosystems and native species should be preserved in as undisturbed a state as possible.
Genetic resources should be maintained in a dynamic and evolutionary state.
Established ecological processes should be maintained.
Structural landscape features or rock exposures should be safeguarded.
Examples of the natural environment should be secured for scientific studies, environmental monitoring and education, including baseline areas from which all avoidable access is excluded.
Disturbance should be minimised by careful planning and execution of research and other approved activities.
Public access should be limited to the extent that it is consistent with these principles.
MANAGED RESOURCE PROTECTED AREA – IUCN CATEGORY VI
Characteristics: the Commonwealth reserve or zone contains natural systems largely unmodified by modern or colonial technology.
Australian IUCN reserve management principles:
The reserve or zone should be managed mainly for the sustainable use of natural ecosystems based on the following principles.
The biological diversity and other natural values of the reserve or zone should be protected and maintained in the long term.
Management practices should be applied to ensure ecologically sustainable use of the reserve or zone.
Management of the reserve or zone should contribute to regional and national development to the extent that this is consistent with these principles.
Attachment 5 – Instrument of Prohibition to restrict access to Reserve from 500 m below the sea surface to 100 m below the sea-bed
The Tasmanian Seamounts Reserve at or below a depth of 500 metres being all of that area within the Southern Ocean, deeper than 500 metres below the Ocean’s surface and extending to 100 metres below the sea-bed, contained within and bounded as follows:
a) commencing at the point of Latitude 4430’ South and Longitude 14725’ East,
b) and proceeding in a westerly direction along the parallel of latitude to the point Latitude 4430’ South and Longitude 14714’ East,
c) then in a north-westerly direction along the geodesic to the point Latitude 4418’50” South and Longitude 14710’ East,
d) then in an easterly direction along the parallel of latitude to the point Latitude 4418’50” South and Longitude 14715’50” East,
e) then in a north-easterly direction along the geodesic to the point Latitude 4416’ South and Longitude 14725’ East,
f) then in a southerly direction along the meridian to the point of commencement.
All co-ordinates are referred to the Geocentric Datum of Australia 1994 (GDA94).