10.5 ELEMENTS OF A VICTORIAN INCURSION MANAGEMENT PLAN FOR INTRODUCED EXOTIC MARINE SPECIES

The Committee recognises that a Victorian Incursion Management Plan will comprise a number of elements. The Committee has identified the following elements as the main components of the plan:

· Rapid response plan for eradication and containment and on-going incursion management;
· Monitoring of exotic organism incursions;
· Protocol for notification of suspected introduced species; and
· Port Ballast Management Plans.

The Committee notes that there are a number of research projects, national initiatives and possible funding sources which could contribute in a significant way to a Victorian Incursion Management Plan. These are discussed in Sections 10.6 and 10.7.

10.5.1 Rapid response plan and on-going incursion management

The Committee understands that the Department has an integrated policy approach which, in the case of exotic organism management, is delivered at field level through combined operational responsibility for both fisheries and flora and fauna matters⁴⁸²

The Committee has some concerns about the overlap of Ministerial portfolios with responsibility for exotic organism management in Victorian waters. The Committee considers that commercial initiatives should not override conservation objectives. The Committee therefore considers that unless spheres of responsibility and Departmental objectives are clearly articulated, the Department's ability to manage new incursions with maximum effectiveness will be compromised.

The Committee cites as an example the contrasting pace and nature of response to Japanese kelp incursions in Tasmania and Victoria.

10.5.1.1 Japanese kelp infestation in Tasmania

On 16 January 1997 an isolated stand of Japanese kelp plants was identified growing in the Tinderbox Marine Reserve, Tasmania⁴⁸³ The kelp population was removed by divers from CSIRO and the Department of Primary Industry and Fisheries (DPIF) on the 23 January 1997⁴⁸⁴ The DPIF then acted quickly to enlist volunteer divers and to establish a community information network to assist in an ongoing monitoring and eradication program. No further infestations were discovered during wider surveys of the area in early February by volunteer divers⁴⁸⁵

At the time of identification and removal the plants were releasing spores. By September 1997 a new stand of approximately 2,000 plants had grown, but had not spread beyond the original location. In September a volunteer dive was organised and 1,000 plants were removed. Although the plant grows rapidly to sexual maturity, it appears that spores are remaining in a very localised area. Rapid spread of the kelp is therefore most likely to occur through boating activities⁴⁸⁶

The aim of the DPIF and the CSIRO is to eradicate the kelp from the Tinderbox Marine Reserve. It is recognised that ongoing efforts will be required to remove subsequent generations⁴⁸⁷

10.5.1.2 Japanese kelp infestation in Victoria

· Japanese kelp was first found on 8 July 1996 by scientists from the Victoria University of Technology (VUT)⁴⁸⁸ One month later, the identity of the plant was officially confirmed. VUT submitted a research proposal for a grant from the Fisheries Branch DNRE to investigate the option of commercial exploitation of the kelp⁴⁸⁹ but it was treated as a low priority⁴⁹⁰

· In early November 1996 a Proposal to Control the Undaria Population in Port Phillip Bay was submitted by the Marine and Freshwater Resources Institute to the Department⁴⁹¹ The Proposal recommended that eradication should be attempted before the end of December 1996 prior to the kelp dying off, or eradication could not be attempted again until August to September 1997.

· Following a request by the Committee to the Department for information about the kelp, the Committee was advised on 15 November 1996 that eradication of the kelp would not be possible⁴⁹²

· The Committee was subsequently advised by the Department on 9 December 1996 that $120,000 had been allocated for research into the kelp, and that one of the objectives of the research was to evaluate short-term containment⁴⁹³ The evaluation would be completed by November 1997. Fifty percent of the funds were allocated to VUT for research into the biology and demography of the kelp in Port Phillip Bay⁴⁹⁴

· On 5 August 1997 an Order in Council was proclaimed which quarantined a 3km² area off Point Wilson near Geelong. The regulations were made under the Fisheries Act; the responsible Minister is the Minister for Agriculture and Resources. The aim of the quarantine was to prevent the further spread of Japanese kelp by recreational and commercial boating activities. Fifty volunteer scuba divers were organised to hand pull the kelp from a designated area within the quarantine zone as a trial for future control works⁴⁹⁵ If the trials prove successful, larger-scale pull-outs may be attempted⁴⁹⁶

· Following the public announcement of the quarantine area on 15 August 1997 by the Minister for Agriculture and Resources, it was reported that the kelp, also known as `wakame', was a popular ingredient in Japanese food and had potential for commercial exploitation⁴⁹⁷

· The introduced species Codium fragile tomentosoides (Codium) first recorded in Corner Inlet (Chapter 4), has now been found in Port Phillip Bay and colonises the same area as the Japanese kelp. The Committee has been advised that during the die-off stage in the life cycle of the kelp, Codium becomes the dominant plant in the area. To date, eradication or containment of Codium has not been attempted.

· The Committee notes that the kelp has now spread outside the quarantine zone towards Kirks Point⁴⁹⁸
The Committee considers that commercial initiatives should not override conservation objectives. The Committee believes that a swifter, more coordinated approach by the Department of Natural Resources and Environment to the Japanese kelp infestation, particularly in view of the Tasmanian response to a similar incursion, may have enhanced the chances of successful early eradication of the kelp. The Committee emphasises that the first priority for any incursion should be early eradication.

The Committee considers that the episode illustrates its point that unless principles, objectives and management plans for exotic species management are established, Departmental responses may be uncoordinated and therefore less effective.

Early intervention and eradication of newly introduced species into Victoria therefore require the development of a rapid response plan at the State level. The Committee recognises that initiatives at the national level to coordinate rapid response capabilities will assist Victoria in the development of such a plan (Sections 10.6 and 10.7).

10.5.2 Monitoring of exotic marine organism incursions

The Committee recognises that the successful establishment of individual species of introduced exotic organisms is variable, and that at the present time it is impossible to predict which species are potential problems⁴⁹⁹ The Committee has heard evidence which recommended that research efforts should not be directed towards understanding what is known of current introductions. Rather, research should be aimed at developing methods of predicting which species are in the future likely to become problems. Importantly,

We need to focus on preventing future problems rather than scripting the spread of current species. ..Mapping present distributions one could also argue, is not likely to make us any better placed to deal with future introductions⁵⁰⁰.

While the Committee understands that mapping species distributions is useful, it nevertheless considers that allocation of scarce resources to mapping distributions of established exotic species infestations should not be a priority over the prevention of further infestations.

The Committee recognises that if measures are adopted to reduce the invasion of new species, ports will need to be monitored to assess whether those measures have been effective. The Committee has been advised, however, that it is likely that there are many exotic species in Australian ports which have either not been reported or are not currently recognised as exotic⁵⁰¹ It follows then, that current knowledge of existing flora and fauna of ports is not comprehensive enough to enable effective detection of new arrivals⁵⁰²

Port surveys are therefore necessary for increasing current knowledge of flora and fauna which in turn facilitates monitoring to determine whether prevention and control measures are proving effective. If control or containment measures are being undertaken for a specific species, monitoring of the infestation will be required to determine the success of the containment program.

The Committee notes that Victorian port surveys already carried out in Portland and Hastings, and intended surveys for Melbourne and Geelong, will increase knowledge of port flora and fauna. The Committee recognises, however, that unless such surveys are repeated with some regularity, they will quickly become outdated.

The question of frequency of surveys is difficult. Opinion provided to the Committee suggests that surveys need to be carried out every 3-5 years to maintain a current information base⁵⁰³ The Committee suggests that if surveys are focused on high risk areas such as berths, small-scale surveys could be conducted more frequently at less cost.

Funding of surveys in Victorian ports has, to date, been jointly provided by the EPA, DNRE, and Victorian ports. The Committee commends this cooperative approach and considers that such an arrangement should continue to fund on-going port surveys in Victoria. The Committee recognises that since the privatisation of a number of Victorian ports and the devolution of responsibility for port land and water functions between port landlords, port owners, port managers and the Victorian Channels Authority, funding from "ports" will not be as straight forward as it was previously. It is the Committee's view that Victoria's port owners and managers should continue to contribute to efforts to manage ballast water and maintain biodiversity in Victorian port waters.

The Committee concludes that there is a need for regular port surveys, and that surveys should be directed in the following ways:

· Port surveys have particular value as means as assessing the effectiveness of prevention and control measures.

· Surveys should be focused on port berths and other areas of likely introductions, rather than attempting to survey entire harbours.

· Port surveys should be oriented towards developing methods of predicting which species are likely, in the future, to become problems.

· Knowledge of species presence and distribution will provide useful information to be considered during risk assessment of ships' with "high risk" ballast water.

10.5.3 Protocols for notification and recording of suspected introduced species.

Following the discovery of suspected new exotic marine organism incursions, the Committee considers it important that formal reporting channels be established to allow early identification and eradication of the incursion to be undertaken.

In the event that a member of the public reports an incursion of an exotic species, it is likely that any of a number of organisations including local government, universities, DNRE, CSIRO or AQIS would be contacted. It is therefore important that an efficient information network is established between relevant groups and organisations. The Committee considers that a central contact point at State level for exotic species incursions should be agreed upon. The Committee recommends that the Government department/division responsible for administering the Flora and Fauna Guarantee Act 1988 be nominated as the State contact point. This division would then have responsibility for coordinating the identification and eradication of the newly introduced species, and informing other relevant State and Federal bodies.

The Committee considers that immediate notification of suspected introductions by the public or any of the organisations listed above to the central contact point is essential. For example, if a university became aware of a possible exotic species introduction, the State contact should be advised immediately, even if the taxonomy of the species has not yet been confirmed.

It is also important that there be a formal system for recording and identifying suspected introduced species. The Committee recognises the difficulties associated with the identification of exotic species due to a limited knowledge of Australia's native marine species, and due to confusion over taxonomy. To increase knowledge of the distribution and identity of species in Australian waters, reports of introduced species should be documented and accompanied by a specimen to be preserved and deposited at State museums⁵⁰⁴

10.5.4 Port Ballast Management Plans

Port Ballast Management Plans are discussed in detail in Chapter 9 of this report. The Plans will assist in the prevention of translocation of exotic species by smaller craft such as fishing and recreational vessels from one Victorian location to another.

10.5.5 Summary

As a consequence of the foregoing discussion (10.5.1 to 10.5.4), the Committee recommends:

Recommendation 13 That a Victorian Incursion Management Plan for Introduced Exotic Marine Species (Recommendation 11) include the following elements: · a rapid response plan and on-going incursion management; · a monitoring program for exotic organism incursions; · a protocol for notification and recording of suspected introduced species; and · Port Ballast Management Plans.