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Legislative Council - Fifty-First Parliament, Third Session (51-3)
2009-09-09 Daily Xml
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SELECT COMMITTEE ON CONDUCT BY PIRSA IN FISHING OF MUD COCKLES IN MARINE SCALEFISH AND LAKES AND COORONG PIPI FISHERIES

The Hon. J.S.L. DAWKINS (17:01): I move:

That the report of the select committee be noted.

On 27 November 2008 this select committee of the Legislative Council was established to inquire into and report on the conduct of PIRSA in relation to issues affecting the livelihoods of those involved in the fishing of mud cockles in the marine scalefish fishery and the Lakes and Coorong pipi fishery. The select committee advertised for interested persons to provide written submissions or register an interest in appearing before it. The committee visited Port Lincoln on 6 and 7 May and heard evidence in relation to the marine scalefish fishery there and made a site visit to Goolwa, Port Elliott and the Coorong on 8 May 2009. The committee met on 13 other occasions to hear evidence.

The evidence focused on the following main areas: inequities in quota allocation; the consultation process, in particular, the role of PIRSA Fisheries; and the impact of quota on fishers' livelihoods. These issues are all covered in the report. The two fisheries are dealt with separately throughout the report where it is appropriate.

The genesis of this inquiry is in the transformation of mud cockles and pipis in South Australia from a low value bait catch into a burgeoning high value human consumption industry over the past decade, with accompanying pressures on both fisheries and an associated rise in market prices. In the South Australian Lakes and Coorong fishery, pipis are taken from the Coorong beaches and the southern Fleurieu Peninsula. In order to comply with the seafood industry standard, the common name changed from Goolwa cockle to pipi in 2007. Pipi fishers need to hold a Lakes and Coorong fishery or marine scalefish fishery licence with an endorsement to take pipis.

The average total annual catch has increased substantially from an average of 307 to 457 tonnes in the period from 1984-85 to 1989-90 to an average of 1,100 tonnes in the period 2000-01 to 2005-06. Pipis need to be purged before they are consumed by humans. The mud cockle fishery is part of the marine scalefish fishery and is actively fished in three areas in South Australia: the Port River, particularly Section Bank; Coffin Bay; and the West Coast of the state, particularly Venus Bay, Streaky Bay and Smoky Bay. Coffin Bay and the Section Bank account for 90 per cent of the stock. Since 2003 the catch for the West Coast has averaged 50 tonnes per annum.

Mud cockles are slow growing, taking about five years to reach maturity, and are susceptible to overfishing. Unlike Goolwa pipis, mud cockles do not need to be purged of sand before they are suitable for human consumption.

The select committee considered the process leading to the introduction of quotas in these fisheries, hearing evidence from individual fishers, fishing organisations and government agencies. The report found that the consultation process between PIRSA Fisheries and the industry could have been handled more effectively but acknowledged the difficulties which occur when new management processes are being considered. The committee noted that the future viability of both fisheries depends on a delicate balance between fishing interests and environmental sustainability and that both have been under threat since demand changed the industry focus from bait to human consumption.

While the committee heard evidence that there are inequities in the quota system, its report concluded that any such system is unlikely to satisfy all the interests involved. The committee heard a great deal of evidence about the inequities of the quota allocation but noted that the allocation was made by an independent and expert panel. It also noted that the nature of the process, that is, one designed to limit fishing activities in the interests of sustainability, is unlikely to satisfy all the players involved. The committee hopes that the industry will accept the new regime and focus on the future development of this important South Australian resource.

The committee recommends that the regulations for the allocation of quota be reinstated to allow the mud cockle and pipi fishers to prepare for the next season, beginning in November, and to restore some stability to the industry. It recommends that an audit be introduced in the future whenever a fishery goes to management as a way of informing the process more accurately. It also recommends more research into the fisheries to assist in their future development.

The report urges the fishers involved to settle their differences and work together with PIRSA Fisheries to ensure a positive and productive future for both the mud cockle and pipi fisheries in this state. I think that is an important point to emphasise. For those fishers on the West Coast of the state, there seems to be no active body, or no body whatsoever, that works as an advocate for the industry, and I think it is important that PIRSA takes a role in promoting such a body.

In relation to the Lakes and Coorong part of the industry, there are two organisations that are at opposite ends of the spectrum. The committee would like to see PIRSA take a strong role in trying to get those two bodies to work together; I think that is very important for the future of the industry.

I am delighted to say that the recommendations made by the committee following its consideration of the evidence and the submissions placed before it have been unanimously reached. I think the committee members worked together very well to come up with the following recommendations:

1. That the Minister for Agriculture, Food and Fisheries reintroduces as soon as practicable the regulations relating to quota allocation.

2. That PIRSA Fisheries reviews its consultation processes to ensure that they are transparent, comprehensive and effective.

3. That PIRSA Fisheries takes a more proactive role in working with the mud cockle fishers in the marine scalefish fishery to ensure that all interested parties are involved in future management decisions.

4. That the Minister for Agriculture, Food and Fisheries explores simpler ways for fishers to appeal against decisions, such as via an advisory body or a ministerial representative.

5. That PIRSA Fisheries commissions research, funded from general revenue, to establish the scope of the mud cockle and pipi resources in the state.

6. That in future, before any fishery goes to management, PIRSA Fisheries conducts a full audit to inform the accompanying process.

7. That the Fisheries Management (Lakes and Coorong Fishery) Regulations be amended to include a provision to prohibit off-beach grading.

The select committee extends its thanks to those who provided information and evidence to its inquiry, including the former minister for agriculture, food and fisheries, government agencies, professional bodies and individual fishers. I extend my personal thanks to the Hons Ann Bressington, Ian Hunter, Caroline Schaefer and Russell Wortley for the way in which they assisted me as chairman of the committee to take evidence from across the whole sector and to dissect and listen to often conflicting evidence but still evidence sincerely given. I appreciate the work of the committee very much.

On behalf of other members of the committee, I indicate how much we appreciate the contribution made by our secretary, Mr Guy Dickson, and our Research Officer, Geraldine Sladden. In relation to Geraldine, I want to say that the quality of the reports she has put forward to a couple of committees I have chaired recently have been extraordinary, and I compliment her on that.

In conclusion, as I think I said earlier, this committee has worked in a very bipartisan manner. I think all members of the committee are very keen that this industry goes forward for the benefit of the respective communities where the industry is based and the state as a whole.

Debate adjourned on motion of Hon. I.K. Hunter.

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