Finfish farming in Fitzgerald Bay

On 23 January 2018, the Department of Primary Industries and Regional Development (PIRSA) released aquaculture lease area (123 hectares) within the Fitzgerald Bay aquaculture zone by way of a public call.

On 28 February 2018, an application to the Aquaculture Tenure Allocation Board (ATAB) was received from Clean Seas Seafood Limited (Clean Seas) for 123 hectares to be allocated for two new production leases in the Fitzgerald Bay aquaculture zone. Specifically, Clean Seas applied for 50 hectares in the Western Fitzgerald sector and 73 hectares in the Eastern Fitzgerald sector.

Following a recommendation by the ATAB on 26 April 2018, the Minister invited Clean Seas to submit a corresponding licence application for 123 hectares.

Western sector applications

On 28 May 2018, PIRSA Fisheries and Aquaculture (PIRSA) received applications from Clean Seas to move 6 existing aquaculture leases and corresponding licences within the Western Fitzgerald sector of the Fitzgerald Bay aquaculture zone (lease/licence numbers: AL00034/FF00026 , AL00035/FF00027, AL00036/FF00028, AL00037/FF00029, LA00119/FF00095 and LA00120/FF00096).

On 4 June 2018, PIRSA received an application from Clean Seas for a new 50-hectare lease (LA00428) and corresponding aquaculture licence (AQ00397) within the same sector.

The purpose of the applications was to create a single licensed area, comprising of seven individual sites (six movements and one new licence) to allow for the use of a submerged grid system. Between them, the sites would allow the farming of a maximum biomass of 2,250 tonnes of Yellowtail Kingfish (YTK) in a leased area of 150 hectares.

Eastern sector applications

On 28 May 2018, PIRSA received an application from Clean Seas to move an existing 60-hectare aquaculture lease (LA00130) and corresponding licence (AQ00140) located within the Eastern Fitzgerald sector of the Fitzgerald Bay aquaculture zone.

On 4 June 2018, PIRSA received an application from Clean Seas for a new 73-hectare lease (LA00427) and corresponding aquaculture licence (AQ00396) within the same sector.

The purpose of the applications was to create a single licensed area, comprising two individual sites to allow for the use of a submerged grid system. The two sites would allow the farming of a combined maximum biomass of 1,995 tonnes of Yellowtail Kingfish (YTK) in a leased area of 133 hectares.

Ecological Sustainable Development (ESD) science-based risk assessment

Applications for new licences will have a comprehensive Ecological Sustainable Development (ESD) science-based risk assessment, legislated public consultation and referrals to government agencies.

PIRSA’s ESD risk assessment of the applications was based  on a National ESD Framework underpinned by the Australian and New Zealand standard for risk management (AS/NZS ISO 31000:2018). During each of the assessments, 20 risk events were identified as relevant to the applications covering site and regional scales which were assessed using likelihood and consequence risk matrices. Results identified any required mitigation measures (e.g. additional licence conditions).

Oceanographic modelling

To inform the assessment of the applications, the South Australian Research and Development Institute (SARDI) did oceanographic modelling to demonstrate the spatial footprint of aquaculture-related nutrients and other derived organic matter in the Upper Spencer Gulf based on the most recent scientific data and information. This was done to understand the direction of nutrient plumes, the concentration of the plumes and if approved where to place monitoring sample sites for the ongoing environmental monitoring programs that would be required.

The modelling studies demonstrated the nutrient levels are expected to remain well below the Australian and New Zealand Environment and Conservation Council (ANZECC) 2000 water quality guideline trigger values both within and outside the zone. For nutrient levels above those trigger values, environmental monitoring programs must be implemented to monitor and manage any impacts.

The modelling also demonstrated strong tidal flows of more than 0.6 meters per second in the vicinity of the aquaculture zone which together with other hydrodynamic variables quickly disperse nutrients from the finfish farms. Nutrients are dispersed over distances of 5-10 km predominately to the north, after which they fall within background levels and are quickly assimilated into the ecosystem contributing to the local food web. Due to seasonal feeding regimes and kingfish growth, nutrient inputs are at their lowest between June to October, which includes the period when the Giant Australian Cuttlefish are aggregating.

Based on regional circulation patterns, the SARDI oceanographic modelling demonstrated a negligible to minimal overlap of aquaculture derived nutrient to the west and south of Point Lowly (where the Giant Australian Cuttlefish (GAC) largely aggregate).

ESD risk assessment

At the time the original ESD risk assessments were undertaken (2018 and 2019), scientific advice from SARDI on the intensity and direction of finfish nutrient plumes based on oceanographic modelling and previous SARDI research on the feeding behaviour of escaped kingfish suggested there was no concern in regard to impacts to the GAC. Therefore, no further risk assessment was undertaken for GAC and thus not included in the original ESD risk assessment.

However, due to the recent increase in concerns from the public and the Conservation Council SA, and the availability of new scientific information, PIRSA have reviewed and updated the risk events in the ESD relating to Escape and Listed Migratory and Threatened Species with respect to GAC to include the most recent information and science available. After consideration of available data, both risks were considered to be low.

See the following ESD risk assessments:

• ESD risk assessment for AQ00397 and movement of 6 finfish sites
  (PDF 8.5 MB)
• ESD risk assessment for AQ00396 and movement of AQ00140 (PDF 19.4 MB)
• Updated Fitzgerald Bay ESD information
  (PDF 1.9 MB).

Consultation

To ensure PIRSA’s aquaculture lease and licence application assessment process was transparent and considered other stakeholder views, PIRSA undertook a targeted consultation on 4 July 2018, in which 24 stakeholder groups were consulted, including the Whyalla City Council and the Conservation Council SA.

In addition, there is a legislated requirement under the Aquaculture Act 2001 to advertise an application for a new aquaculture licence in a newspaper circulating generally in the state or on the PIRSA webpage. On 30 August 2018, the applications for the new aquaculture sites were publicly advertised in The Advertiser and the Whyalla News, inviting comment from the general public.

Legislated referrals of an application are made to other South Australian government agencies for their approval (the Department of Infrastructure and Transport (DIT) and the Environment Protection Authority (EPA)). Further, formal notice is given to any relevant native title bodies and claimants through their representative.

The applications for aquaculture licences were referred to the EPA for approval to ensure the proposal met the objectives of the Environment Protection Act 1993 and associated Environment Protection Policies. Environmental issues of interest to the EPA include protection of water quality, management of noise and air quality, solid waste management and disposal, storage, use and disposal of hazardous substances and ecological impacts from pollution. The EPA provided approval for the applications based on an appropriate environmental monitoring program which was subsequently developed.

Approvals

The application for a new 50-hectare site (AQ00397) in the Western Fitzgerald sector of the Fitzgerald Bay aquaculture zone was approved 2 July 2019. An application to amalgate the 7 existing licences was approved in December 2019.

The application for a new 73-hectare site (AQ00396) in the Eastern Fitzgerald sector of the Fitzgerald Bay aquaculture zone was approved 19 June 2020.

You can find more detail about these licences on the aquaculture public register.

Note difficulties in obtaining access to the Point Lowly marina have delayed farming activities since the licences were approved. However, on 31 May 2021, the Whyalla City Council resolved to grant Clean Seas three-year access to the Point Lowly Marina to facilitate their finfish farming activities in Fitzgerald Bay. The Council has negotiated a memorandum of understanding (MOU) with Clean Seas that outlines strict controls, as well as expectations of consultation, compromise and engagement with Council and the community on an ongoing basis. As part of the MOU, Clean Seas will be required to undertake remedial work identified in an independent assessment report of the existing marina facilities at their own cost and prior to commencing operations. This will provide an improved facility for all users of the marina.

Despite the risk assessments for each licence and oceanographic modelling demonstrating the farming activity is low environmental risk, Clean Seas must have EPA-approved environmental monitoring programs and have also invested in additional environmental monitoring of seagrass in the area (FRDC project 2018-186).

An ongoing environmental monitoring program (EMP) to assess and manage any environmental risks associated with the farming activity has been developed by PIRSA and the EPA at a site and regional level. At a site level, video footage of the benthic habitat in and immediately adjacent the lease sites is required to demonstrate changes to the habitat (which is predominately sand). At a regional level, video footage of seagrass communities is required to monitor any changes to the seagrass condition and cover. These data will contribute to FRDC project 2018-186 and complement the EPA’s ecosystem monitoring program for Fitzgerald Bay. See more detail on the Fitzgerald Bay EMP (PDF 3.2 MB) and the amended Fitzgerald Bay EMP (PDF 3.3 MB).

In June 2020, the FRDC project 2018-186 developed in conjunction with PIRSA (including SARDI), Clean Seas and the EPA commenced. The project aims to assess whether there is any influence of finfish aquaculture derived nutrients on seagrasses in the Fitzgerald Bay area. The project uses benthic video, physical sampling of seagrass and biomarking technology, as well as the collection of oceanographic data to monitor the overall condition and cover of the seagrass communities in Fitzgerald Bay. It is anticipated this research will provide a better understanding of any potential impacts of nutrients from finfish aquaculture on the seagrasses and assist with assessing the future management of aquaculture in such scenarios.

FRDC project milestones

Baseline data for the FRDC project 2018-186 was collected in May 2020. Below are the first three data milestone reports.

• Milestone 2 progress report (PDF 451.3 KB)
• Milestone 3 and 4 progress report (PDF 1.1 MB)

Environmental data collected

Water samples to measure planktonic communities for phytoplankton and picoplankton were taken in September 2021 as part of the regional EMP. See the results for phytoplankton (PDF 220.6 KB) and picoplankton (PDF 192.3 KB).

See information about the Giant Australian cuttlefish.

In 2013 SARDI produced a report, Monitoring the relative abundance and biomass of South Australia’s Giant Cuttlefish breeding population (5.9 MB PDF).

The legislative and regulatory requirements for marine debris are outlined in the Aquaculture Regulations 2016 and Aquaculture Legislation in South Australia (PDF 595.5 KB). In addition the industry led beach clean-up program is detailed in the Zoning In: South Australian Aquaculture Report 2023 (pir.sa.gov.au).

Clean Seas participate in a beach clean-up program in lower Spencer Gulf and have committed to a similar program in Fitzgerald Bay.

PIRSA encourage anyone to report debris or any other matter if they feel it is in breach of licence conditions to PIRSA (e.g. navigation marks).

Since 2005 it has been mandatory for marine aquaculture licence holders to report to PIRSA any cases of stock escaping. PIRSA maintains an up-to-date finfish escape register.

Compliance and auditing programs are outlined in annual PIRSA reports about its services to the aquaculture industry.

Breaches of legislation, licence conditions or poor performance are considered by PIRSA when determining the term of leases/licences.

Research is critical to understand potential impacts to and from aquaculture, development of new technologies, and biosecurity risks. Since 2003 there have been many research projects relating to finfish farming in South Australia, some of which are listed below:

• FRDC Project 2003/220 – Potential for parasite interactions between wild and farmed kingfish, discrimination of farmed and wild fish and assessment of migratory behaviour
• FRDC Project 2003/222 – Spatial impacts and carrying capacity - further developing, refining and validating existing models of environmental effects of finfish farming
• FRDC Project 2003/223 – Environmental audit of marine aquaculture developments in South Australia
• FRDC Project 2004/201 – Addressing seal interactions in the finfish aquaculture industry
• FRDC Project 2004/203 – Extension, communication and adoption of the outputs from the PIRSA and FRDC Initiative
• FRDC Project 2006/078 – Development of rapid environmental assessment and monitoring techniques for application to finfish aquaculture in South Australia
• FRDC Project 2009/046 – Carrying Capacity of Spencer Gulf: Hydrodynamic and biogeochemical measurement modelling and performance monitoring (PDF 7.7 MB). This is the model PIRSA uses when assessing new aquaculture developments. SARDI can also run simulations of the model for a fee.
• FRDC Project 2010/051 – Biosecurity risk assessment and development of standardised mitigation for Tuna and Finfish aquaculture
• FRDC Project 2010/201 – Feasibility study for integrated multitrophic aquaculture in southern Australia
• FRDC Project 2011/263 – A review of South Australia monitoring of aquaculture
• ASCRC Project 2013/730 – Refining Yellowtail Kingfish feeds and feed management
• FRDC Project 2014/020 – Application of high-resolution tracking technologies to understand movement and residency of pelagic sharks in southern Spencer Gulf: resolving spatial overlaps with marine industries, community activities and natural foraging areas
• FRDC Project 2016/200 – Growing a profitable, innovative and collaborative Australian Yellowtail Kingfish aquaculture industry
• FRDC Project 2018/186 – Assessing the capacity for sustainable finfish aquaculture in the vicinity of seagrasses
• FRDC Project 2019-088 – Development of a national sector-specific biosecurity plan guideline and template for the sea-cage finfish (non-salmonid) industry of Australia.