Submission to the House of Assembly Standing Committee on Government Administration B
Inquiry into the closure of the Sand flathead fishery in south-east Tasmania
Environment Tasmania welcomes the opportunity to provide a submission to this inquiry into the closure of the Sand flathead fishery in south-east Tasmania.
Overview
The closure of the Sand flathead fishery reflects a long-term decline in stock health and the consequences of delayed management action. While the closure is a difficult outcome for recreational fishers and coastal communities, it is a necessary step to support the recovery of a depleted species.
This situation highlights the need for a more precautionary and holistic approach to managing Tasmania’s marine environment, to avoid similar outcomes in the future.
1. Information informing the closure
Sand flathead was listed as Depleted in the 2020–21 Tasmanian Scalefish Fishery Assessment Report, indicating that stock levels had fallen to a point where sustainability was at risk.1
The key finding was that selective pressure has shifted size at maturity downward, resulting in a population characterised by reduced growth (i.e. a stunted stock).
In response to this Fisheries Tasmania amended Sand flathead rules, banning commercial catch and introducing slot limits, and reducing catch limits for recreational fishers in 2023.2 To help inform this change Fisheries Tasmania conducted two rounds of public consultation and engaged IMAS to complete a study to assist in understanding recreational fishers perceptions of stock status and management of Sand flathead.
In 2025 IMAS completed an assessment of the status of southern Sand flathead in Tasmania finding that most flathead were still small fish and, in most areas 79 - 100% of flathead were still undersized. This study also noted that without strong action Sand flathead may not recover.3
While uncertainty is inherent in fisheries science, the available evidence clearly indicated a declining stock and the need for decisive management intervention. Effective fisheries management relies on high-quality data, robust stock assessments, and transparent communication and education among both commercial and recreational fishers. Although additional assessment methods and recovery efforts are now being investigated, such measures should not be deferred until the fishery is approaching depletion.
The lag between initial stock classification, the implementation of interim management measures that proved ineffective, and the eventual adoption of a full closure suggests that management responses, including the application of robust science and community education, lacked sufficient urgency.
This highlights the importance of applying the precautionary principle—taking early action to prevent further decline, rather than delaying intervention until more severe measures become necessary.
2. Environmental, social and economic considerations
A healthy marine environment underpins Tasmania’s social, cultural and economic wellbeing. Recreational fishing contributes approximately $270 million annually to the Tasmanian economy4 and is highly valued by the community.
The decline of Sand flathead represents a loss not only to the environment, but also to fishers, local businesses and coastal communities.
While the closure has short-term impacts, these must be weighed against the long-term consequences of inaction. Earlier, more precautionary management may have reduced the need for such a significant intervention.
3. Consultation and process
Clear, transparent and ongoing engagement with stakeholders is essential in fisheries management.
Where stock declines are identified early, timely communication about potential management responses, including the possibility of closure, can help build understanding and trust. Without this, decisions can feel abrupt, even where they are necessary. These decisions also need to be underpinned by trusted robust science, that can assist in implementing meaningful, effective measures.
While extensive consultation was undertaken in 2023, no clear management plan—outlining key indicators, decision triggers, and potential actions (such as a closure) was developed. Feedback from this process, which showed strong support for a closure, could have been used to guide a more structured and proactive approach to managing the species. Given that Sand flathead are Tasmania’s most important recreational fishery, they require strong, transparent, and reliable management plans.
Improved consultation processes, alongside earlier intervention, may help reduce both ecological and social disruption.
4. Legislative framework
The closure highlights limitations in Tasmania’s marine governance system.
The Living Marine Resources Management Act 1995 is primarily focused on fisheries and does not provide a comprehensive, ecosystem-based framework for managing Tasmania’s marine environment. This issue is particularly prevalent for species that rely on fisheries-independent data for management, where data are often sparse. This can limit the effectiveness of management measures and undermine community confidence.
This case reinforces the need for a modern Marine Environment Act that takes a whole-of-ecosystem approach, integrates climate impacts, and supports more proactive, precautionary decision-making.
5. Reopening the fishery
Any decision to reopen the fishery should be based on clear, transparent and scientifically robust evidence that the stock has recovered.
A precautionary approach should be maintained, including staged reopening, ongoing monitoring, and the ability to respond quickly if stock levels decline again.
Conclusion
The closure of the Sand flathead fishery is a necessary but belated response to stock decline. It highlights the importance of earlier intervention, stronger application of the precautionary principle, and a more integrated approach to marine management.
By learning from this case, Tasmania has an opportunity to improve how it manages marine resources, reducing the likelihood of future closures, protecting marine ecosystems, and maintaining community confidence.
Signed:
Rebecca Howarth
Senior Marine Campaigner
Environment Tasmania
References:
1. Tasmanian Scalefish Fishery Assessment 2020/21; Fraser et al.; 2022; https://www.imas.utas.edu.au/__data/assets/pdf_file/0005/1632515/Scalefish-Assessment_2020-21.pdf
2. Scalefish Fisheries Rules Review; https://fishing.tas.gov.au/Documents/Flathead-Rules-Summary-Oct-2023.pdf
3. Southern Sand Flathead Assessment 2025; Krueck et al.; 2025; https://www.utas.edu.au/__data/assets/pdf_file/0009/1902744/Southern-Sand-Flathead-Assessment-2025-Final.pdf
4. National Social and Economic Survey of Recreational Fishers; Moore et al.; 2018-2021 file:///C:/Users/rebec/Downloads/2018-161-NRFS_mainreport_FINAL_19Feb2023.pdf