Goulburn-Broken Catchment Roadside Biodiversity Risk Management Protocols
December 2007
Goulburn-Broken Catchment Roadside Biodiversity Risk Management Protocol Project Report
Roadside Biodiversity Risk Management Protocols
Table of Contents 1. Overview ...... 1 1.1 Summary...... 1 1.2 Background...... 2 2. General guidelines and principles...... 6 2.1 Roadsides are important for biodiversity conservation ...... 6 2.2 Risk of impacts...... 6 2.3 Incremental loss...... 6 2.4 Communication, consultation and involvement...... 6 2.5 Early intervention ...... 6 2.6 Environmental management skills and training...... 7 2.7 Third party activities...... 7 2.8 Triple bottom line ...... 8 2.9 Legislation...... 8 2.10 Role of Local Government - what can Councils do?...... 9 3. Program specific guidelines...... 10 3.1 Road construction and maintenance...... 10 3.1.1 Overview ...... 11 3.1.2 Key guidelines...... 11 3.2 Fire prevention works in road reserves ...... 13 3.2.1. Overview ...... 14 3.2.2. Key guidelines...... 14 3.3 Livestock movement and grazing...... 16 3.3.1 Overview ...... 17 3.3.2 Key guidelines...... 17 3.4 Slashing and spraying programs...... 19 3.4.1 Overview ...... 20 3.4.2 Key guidelines...... 20 3.5 Construction or repair of fence lines / property access...... 22 3.5.1 Overview ...... 23 3.5.2 Key guidelines...... 23 3.6 Roadside rehabilitation (revegetation and enhancement) ...... 25 3.6.1 Overview ...... 26 3.6.2 Key guidelines...... 26 3.7 Firewood collection ...... 28 3.7.1 Overview ...... 29 3.7.2 Key guidelines...... 29 4. Roadside Biodiversity Risk Management Check Lists ...... 31 4,1 Communications ...... 31 4.2 Road construction and maintenance...... 33 4.3. Fire prevention works in road reserves ...... 39 4.4 Livestock movement and grazing...... 45 4.5 Slashing and spraying ...... 51 4.6 Construction or repair of fence lines / property access...... 57 4.7 Roadside rehabilitation (revegetation and enhancement) ...... 63 4.8 Firewood collection ...... 69 Appendix A - Biodiversity Risk Management Reference Group Participants...... 75 Appendix B - Training Program Options ...... 77
Roadside Biodiversity Risk Management Protocols
1. Overview 1.1 Summary The Roadside Biodiversity Risk Management Protocols (RBRMP) was developed by a joint local government and Goulburn-Broken Catchment Management Authority (GBCMA) project managed by Moira Shire Council. The primary aim of the project is to preserve biodiversity related with roadsides by improving the capacity of local government to manage associated activities and risks. A reference group consisting of representatives from local governments and key agencies in the Goulburn-Broken catchment (appendix A) supports the project and provided technical input to the protocols.
The protocols provide general guidelines and simple measures and processes that can be easily adapted and implemented by local government and others to mitigate potential impacts to biodiversity as a result of works and other activities in road reserves.
The key objectives are: • To increase awareness and understanding of the factors influencing biodiversity risk management, particularly in road reserves. • To minimise adverse impacts and where possible enhance biodiversity as a result of activities undertaken in road reserves. • Provide practical information and guidance on measures which can be implemented to mitigate potentially adverse impacts to biodiversity. • To supplement existing information and guides such as Roadside Management Plans and Codes of Practice. • Foster a cooperative and where possible a consistent approach by local government and others to roadside biodiversity management.
The premise of the protocols is that biodiversity conservation, and more broadly environmental management, can be integrated into all management actions and activities associated with road reserves. Adopting and implementing measures to avoid and minimise the chances of adverse environmental effects should be standard practice and everyone’s responsibility. The principle is not dissimilar to the integration of occupational health and safety into workplaces.
Local government is the responsible authority for local roads and is therefore well placed to influence biodiversity conservation associated with road reserves. There are many things local government can do to ensure this influence is a positive one. Most importantly councils can integrate environmental management into all of their relevant processes, ensure compliance with regulatory controls and foster involvement and ongoing improvement throughout their organisations.
The responsibilities for biodiversity conservation associated with road reserves do not lie solely with local government. Catchment Management Authorities (CMAs), Department of Sustainability and Environment (DSE), Department of Primary Industries (DPI), Country Fire Authority (CFA), VicRoads, other agencies and the public all have roles and responsibilities. Improved outcomes can be obtained by local government developing networks and cooperative relationships with agencies, other councils and the public.
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Willingness on the part of stakeholders to gain a better understanding of the factors influencing the functions of roads, and to take appropriate action when necessary, is a key to improving biodiversity conservation.
Councils and others are encouraged to adopt, and or adapt, the roadside biodiversity risk management protocol principles, processes and guidelines into their systems. It is also highly recommended that councils support this by providing targeted, specialised training programs for staff and others to further aid implementation of environmental management systems and biodiversity risk mitigation.
1.2 Background Roads primarily provide transport and access routes for people, goods and services. However another very important but probably unintentional function of roads is as reserves for native flora and fauna. Some roads, or more specifically roadsides, support high levels of biological diversity and areas of high conservation value. The implications of climate change increase the significance of these areas for biodiversity conservation.
The depletion of native vegetation and habitats in other land tenures has accentuated the importance of roadsides for providing a range of habitats for flora and fauna, including threatened species and vegetation types. Native vegetation and habitats on roadsides can include many of the few remaining examples in highly developed landscapes, as well as some of the higher quality examples where there have been fewer disturbances. They often provide the only connectivity to other remnants and also the framework to support revegetation and restoration efforts in other land tenures. In the Goulburn-Broken Catchment there are flora species known only to remain on roadsides and fauna that would otherwise not exist in some areas without roadside habitats.
The eight local government areas represented in the Goulburn Broken Catchment have a total of around 17,500 kilometres of local roads1. This equates to an area estimated conservatively at around 35,000 ha. Not all of this has been assessed for conservation values, however, areas which have been subject to some form of assessment indicate that, on average 37% of roads are rated high conservation value and a further 38% are rated medium conservation value. These figures are averages but nevertheless provide a useful indicator of the direct contribution roads make to biodiversity conservation in terms of area alone.
Local government is the responsible authority for municipal roads and is therefore well placed to manage risks to biodiversity in road reserves under their care. This role is determined to an extent by a range of legislative requirements, strategies, policies and other controls. Awareness, understanding and compliance with responsibilities required by these controls can address many of the issues associated with biodiversity conservation in road reserves.
There may also be opportunities for local government to develop and implement their own internal procedures for council works and processes such as Local Laws to regulate and manage third party activities in road reserves.
The importance of roadsides for biodiversity conservation is fairly broadly acknowledged by local government and others, with much good work being done to improve roadside management. However, there is a need for ongoing commitment and resources.
1 Department of Transport and Regional Services, 2004/5 annual report
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By gaining a better understanding of issues relating to biodiversity conservation, changing or improving practices and implementing simple processes, councils can improve their environmental performance, increase efficiencies and reduce costs.
The Roadside Biodiversity Risk Management Protocols (RBRMP) project reference group identified a sample of local government administered programs and activities that were considered to have the potential for impacts on biodiversity in road reserves. These were then subjected to a quantitative biodiversity risk assessment to indicate the type, levels and significance of biodiversity risks associated with the programs and activities. The risk assessment was based on methods and processes for biodiversity risk mitigation protocols developed by Sinclair Knight Mertz2 for the GBCMA. A report3 of the risk assessment process and results showed relatively high risk of potential biodiversity impacts. Indicated risk scores showed 84% in the high to medium range (see Table 1).
Table 1: Risk Score* Summary Program Road Fire Livestock Slashing Fence & Roadside Firewood construction prevention movement & property rehabilitation collection Potential & works & grazing spraying access Impact maintenance Native vegetation removed/effected 9 9 9 8 8 8 8 Loss or damage to habitats 9 9 9 8 8 8 8
Accidental pest spread, weeds 8 8 8 9 7 7 6 etc Contamination run-off sediments 7 7 7 6 5 5 5 dust Altered water regimes, 6 5 4 4 4 4 4 drainage etc *Score range is 2-10. Scores of 2-4 indicate lowest risk, 5-7 moderate risk and 8-10 high risk.
Protocols were then developed in conjunction with the RBRMP project reference group, with the aim of assisting local government to address the identified risks. Practicality and response to local government needs were key considerations throughout the protocol development process. The protocols provide general guidelines and simple measures and processes which can be used to aid mitigation of potential impacts to biodiversity as a result of works and other activities in road reserves. The protocols are set out as follows: • General guidelines and principles (Section 2) • Program specific guidelines (Section 3) • Roadside biodiversity risk management check lists (Section 4) • Environmental works planning and management for roadsides training program options. (Appendix B)
2 Native Biodiversity Risk Mitigation Protocols, Training Manual, Sinclair Knight Mertz, 2003 3 Goulburn-Broken Catchment, Roadside Biodiversity Risk Assessment Report, Roadside Biodiversity Risk Management Protocols Project, 2007
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All of the guidelines and check lists provided are of a general nature, so there may well be other circumstances that can be applied on a case by case basis. This also applies to the mitigation measures suggested and the legislative references. A check of current legislative requirements, interpretation and relevance is recommended for anyone using these guidelines.
The program check lists in Section 4 are a tool to guide the user through a simple step by step process which aids with the identification, evaluation and mitigation of potential impacts to biodiversity as a result of activities in a road reserve. This information can then be used to develop and implement an environmental management plan for the proposed activities. The check lists follow a standard format with specific variations for each program; however the method could easily be adapted for other activities not covered here.
The guidelines and check lists are not intended to be used solely to determine if an activity or project should proceed or not.
The assessment process focuses on identifying a range of biodiversity ‘assets’ rather than just native vegetation, emphasis is given to identification of various characteristics of native vegetation, habitats, threatened species, wetlands and waterways.
An essential element of the risk management process is good communications, monitoring and reporting from project concept to completion of works. A communications check list is provided (Section 4.1) to assist with this part of the process.
The level or complexity of assessment and expertise required to undertake it will vary considerably depending on the circumstances of each proposal, or the type of activity. For example simple routine activities may only require a basic visual assessment. Importantly any assessment should follow the steps outlined in the check lists.
The following is a summary of steps in the roadside biodiversity risk management process: 1. Identification of works planned and activities involved. 2. Identification of biodiversity assets on-site and off-site (beyond the road reserve). What information needs to collected? 3. Identification of potential impacts. What potential impacts could there be from the activities required by the works on biodiversity assets onsite and offsite? 4. Assess likelihood of impacts. The proximity of the area of activities to biodiversity assets is likely to increase the chances of adverse impacts. 5. Identification of mitigation measures. What methods can be used to avoid or at least reduce the likelihood of potential impacts? Are there existing controls such as legislative requirements, codes of practice that must be complied with? 6. Review and evaluation. Will these measures adequately reduce the likelihood and avoid/minimise potential impacts. If the result of review is not satisfactory (risks remain that are deemed to be unacceptable), change mitigation, look for alternative options 7. Mitigation planning and implementation. Prepare a risk management plan ie mitigation measures/actions. How will they be implemented? When? What resources are required? Who will be responsible? Monitoring/reporting required.
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In developing the protocols, the RBRMP project reference group also recognised the necessity for ongoing development of the knowledge, skills and ability required by the people involved in activities associated with roads and biodiversity risk management. This was considered to be a particularly important aspect of effective roadside management. The reference group also considered and assessed the merit and potential benefits of specialised environmental (roadside) management training. In order to assess the benefits of training, an evaluation4 of accredited environmental management for roadsides training was conducted during this project by surveying participants in training programs undertaken by four councils in 2006/07. Participants were asked to voluntarily self rate their level of knowledge and understanding of a range of topics pre and post training. The survey results showed a substantial, 70% (average) improvement post training. This result was further supported by anecdotal reports from participants post training, that practical, specialised and professionally presented training has improved their performance and response to environmental management. Whilst the benefit of training is clearly evident, it was also thought that further gains could be achieved if there were more training program options available which encouraged progressive skills development. To address this, the project reference group worked with a professional training provider to develop a range of program options suited to local government (Appendix B). The training programs have a strong emphasis on raising environmental awareness, practical skills development, implementation techniques and workplace communications. Program options include several levels of training to aid progressive skills development. Environmental works planning and management for roadsides training is highly recommended to local government and other road managers.
4 Results Summaries, Roadside Training Evaluation Surveys, Roadside Biodiversity Risk Management Protocols Project, 2006,2007
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2. General guidelines and principles 2.1 Roadsides are important for biodiversity conservation Roadsides support areas of high biological significance such as native vegetation, threatened species and habitats in the road reserve and adjoining areas. The depletion of native vegetation and habitats in other land tenures has accentuated the importance of roadsides for a range of flora and fauna, including threatened species and vegetation types.
Native vegetation and habitats on roadsides can include many of the few remaining examples in highly developed landscapes, as well as some of the higher quality examples where there have been fewer disturbances. They often provide the only connectivity to other remnants and also the framework to support revegetation and restoration efforts in other land tenures. In the Goulburn-Broken Catchment there are flora species known only to remain on roadsides and fauna that would otherwise not exist in some areas without roadside habitats. Protection and preservation of biodiversity on roadsides is a very important
The implications of climate change increase the significance of roadside corridors for biodiversity conservation.
2.2 Risk of impacts The risks of biodiversity impacts from a range of activities undertaken in road reserves are generally high and almost certain to occur if no action is taken to avoid them.
2.3 Incremental loss Even small impacts should be avoided where possible. They all contribute to incremental losses which compound over time. Opportunities should also be sought to offset unavoidable losses and enhance existing biodiversity assets associated with roads.
2.4 Communication, consultation and involvement Effective communication and consultation with all involved throughout any process to manage risks is very important. There needs to be clear understanding of issues, reasons for decisions, clearly defined actions and allocation roles and responsibilities for implementation (see communications checklist section 4.1).
2.5 Early intervention Involvement in the early concept and planning stages of works programs, projects, proposed works and public enquiries provides the greatest opportunity to positively influence environmental outcomes for biodiversity. This is when risk assessment should start and then continue as plans are adjusted to avoid potential impacts. If necessary, alternative options should be considered when other mitigation options do not adequately address risks. Early intervention is also more likely to ensure compliance with regulatory controls and discourage unauthorised works.
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2.6 Environmental management skills and training Ongoing development of awareness, understanding, knowledge and skills required for environmental management of activities in road reserves underpins successful implementation of tools such as protocols, codes of practice, roadside management plans, procedures and processes as well as compliance with policy and legislation.
It is important for councils to adopt a broad organisational approach to roadside management education and training for all sectors of council. Participation by staff and management from a cross section of council departments has many advantages such as improved inter-department cooperation, more informed response to community enquiries and greater efficiencies. There are several training program options available to councils (see Appendix B).
Councils are encouraged to develop and implement a training strategy for environmental works planning and management for roadsides.
2.7 Third party activities Some works and activities may be undertaken by a third party such as a landholder, community group or contractor rather than directly by council, however when the works involve a road reserve there may be options and or legal responsibilities to regulate the works and thereby influence potential impacts.
Unauthorised and uncontrolled works in road reserves are a serious threat to biodiversity conservation. Councils need to ensure they have processes in place to provide an appropriate response to enquires and an ability to process applications from third parties. It is essential that where necessary council processes include a referral for environmental assessment and recommendations. Verbal approvals and or an assumption that a proponent will be aware of and interpret legislation, or other technical information, will increase the likelihood of impacts on biodiversity.
Many third party activities in road reserves can fall within a broad interpretation of the definition and generality of ‘Works’ (Road Management Act 2004), the conduct of which by any person requires written consent of the coordinating road authority. This is usually referred to as, a ‘Consent for Works in a Road Reserve Permit’.
Environmental conditions can be applied to any written consent for ‘works’ in order to protect and preserve existing significant roadside vegetation and sites of biological significance within the road reserve.
Applications for consent for works should be subject to a biodiversity risk assessment. An assessment provides the opportunity to evaluate the potential impacts and will support the application of conditions to consent for works permits when necessary. It can also improve a proponent’s awareness of the need for biodiversity risk management. A lack of awareness and understanding increases the risk of potential impacts. Where possible it is recommended to involve proponents in an onsite inspection and assessment of proposed works.
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2.8 Triple bottom line Environmental objectives and initiatives should be considered as complimentary to, rather than threatening or contrary to, other management objectives. Skilled personal, appropriate communications, pre works assessment, planning and implementation of environmental best practice can produce the much sought after but not always achieved triple bottom line of environmental, economic and social benefits.
For example weeds are a considerable threat to biodiversity, economic and aesthetic values. Weed management is also costly and there is increasing pressure from the community for councils to undertake weed control. A range of activities undertaken in road reserves can potentially spread weed material and cause excessive ground disturbance resulting in weed invasion. Simply understanding this and implementing practices to minimise ground disturbance and improve vehicle hygiene can significantly reduce the risk of weed invasion and spread, minimises the risks to biodiversity and reduces the potential for costly, ongoing weed control.
2.9 Legislation There is an array of legislation and policy relevant to biodiversity and road management. The following are some examples which may influence local government management of road reserves. Councils should be aware of their responsibilities and ensure they are addressed. ● Local Government Act 1989 ● Flora and Fauna Guarantee Act 1988 ● Planning and Environment Act 1987 ● Road Management Act 2004 ● Aboriginal Heritage Act 2006 ● Environment Protection and Biodiversity Conservation Act 1999 ● Catchment and Land Protection Act 1994 ● Victoria’s Native Vegetation Management – A Framework For Action ● Victoria’s Biodiversity Strategy
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2.10 Role of Local Government - what can Councils do? There are many ways councils can contribute to biodiversity conservation associated with road reserves.
The following are some recommendations based on points identified during the protocols development process: • Develop awareness, knowledge and commitment to sound environmental management throughout the organisation. • Provide direction and support through Council Plans, strategies, policy. • Identify and document biodiversity information, threatening processes and management requirements. Ensure this is accessible and well known. • Develop and resource council revegetation/rehabilitation projects. • Ensure compliance with legislative and other regulatory responsibilities. • Integrate environmental management into systems, procedures, processes and practices. • Implement systems and controls to manage and ensure compliance with council consent for third party activities in road reserves, such as ‘Consent for Works’ and livestock permits. • Encourage communication and sharing of responsibilities between all functions of council. • Develop and implement incident response procedures. • Review existing practices and procedures (controls) for strengths and weaknesses and modify where necessary. • Provide regular environmental management awareness and technical training with a focus on a whole of organisation approach rather than just a section such as road crews. Include other sectors such as customer service, administration, planning, local laws, infrastructure, management and Councillors, they all influence roadside management. • Provide skilled environmental technical support for staff. • Source and provide technical information. • Support inter-council and agency cooperation, information sharing and joint projects. • Encourage community involvement and acceptance by: o Providing information and clear direction from council. o Ensure informed and consistent responses from council staff to enquiries. o Ensure systems are in place and implemented to manage third party activities in road reserves eg consent for works, livestock permits. o Discourage unauthorised activities in road reserves.
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3. Program specific guidelines 3.1 Road construction and maintenance
Road construction and maintenance activities can lead to considerable biodiversity losses. Many losses can be attributed to poor works planning and practices such as dumping spoil on native vegetation, excessive widening of the road formation and soil disturbance leading to weed invasion.
Unnecessary works and or sub-standard work practices are costly to perform, increase follow up maintenance costs, encourage weed invasion, adversely affect landscape values and often lead to community complaints.
Unfortunately, the examples of poor work standards and practices shown in these photographs are not uncommon.
Road managers need to ensure environmental planning and practices are implemented for all works. Sub-standard works and practices should not be accepted.
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3.1 Road construction and maintenance
3.1.1 Overview Road construction and maintenance involves a very diverse range of activities and projects which are implemented frequently and extensively across a broad area. While roadside vegetation and habitats may not be targeted directly by many activities, for example during routine road maintenance, the chance of accidental impacts is high.
An assessment of biodiversity risk for activities associated with road construction and maintenance indicated that there is a high risk of loss or damage to native vegetation and habitats and accidental weed spread. There is a slightly lower, but still significant risk of erosion and sediment and nutrient run-off to wetlands or waterways. There is also a moderate risk of impacts from alterations to drainage leading to altered surface water and stream flows, and alteration of aquatic and or terrestrial ecosystems.
Some of the higher risks relate to removal of native vegetation, ground disturbance and compaction, weed invasion of disturbed ground, reduction of roadside width, adverse effects on regeneration and health of remaining vegetation, and removal of habitat features such as woody debris and leaf litter.
3.1.2 Key guidelines The risk of biodiversity impacts can be very high. Unnecessary and avoidable biodiversity losses can and do occur as a result of road construction and maintenance activities. These activities are more likely to be undertaken by council staff and contractors. Council staff and contractors need to be aware of the risks of potential impacts and requirements for mitigation measures to be implemented. Informed and cooperative arrangements are more likely to produce better outcomes. All road construction and maintenance activities should be subject to an environmental assessment. The level and detail of assessment should be consistent with the type, location and extent of activities in relation to proximity of biodiversity assets. For routine tasks where activities are confined to the cleared area of the road formation the focus should be on avoiding adverse biodiversity impacts through implementation of approved procedures and work practices which are consistent with Codes of Practice, Roadside Management Plans. All staff and contractors should have or be required to attain skills and knowledge necessary to implement environment management practices. In addition to the above. Where works are proposed and it is likely activities could potentially impact biodiversity assets the proposed works should be subject to an on-site assessment to determine mitigation measures to be implemented. If necessary an Environmental Management Plan (EMP) should be developed. Responsibility for implementation should be clearly defined, allocated and acknowledged by the appropriate parties. This should include monitoring and reporting. All relevant stakeholders should be consulted and approvals given prior to commencement.
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