Evaluating regional plans in Australian tropical savannas
A guide for planners and reviewers
G.T. McDonald, C.A. McAlpine, B.M. Taylor, A.R. Vagg
January 2003
Contents
Framework Basics
Introduction and purpose...... 1
How the framework was developed...... 1
Why a northern Australia focused framework...... 2
What does the framework actually evaluate...... 3
How to apply the framework...... 4
Important issues and limitations ...... 7
Criteria and Application Notes
Introduction and purpose...... 8
A word on using the application notes...... 8
Outcomes-based criteria for regional plans and application notes...... 9
Further information and contacts...... 28
i
Framework Basics
Introduction and purpose
The framework presented in this guide can support regional planners intending to revise or review existing regional natural resource management plans, or in developing new regional plans.
The framework allows planners to ask in a structured way:
1) Does this plan consider the critical issues (or criteria) for regional sustainability relevant to northern Australia? 2) How comprehensively does this plan address these issues in terms of the technical information applied to these issues? 3) In which parts or ‘components’ of the plan are these issues addressed?
The framework is presented in two parts:
• Framework Basics – this document - introduces the main parts of the framework – the criteria, plan components and rating scheme - and describes how it may be applied to evaluating regional plans; and,
• Criteria and application notes - provides a detailed description of each of the regional planning criteria, a rationale for their selection and a set of application notes that point to examples of ‘what to look for’ when applying the criteria.
How the framework was developed
This framework has been developed as a product from a Tropical Savannas CRC project with project partners from the University of Queensland and Department of Natural Resources and Mines (Qld). For a full discussion on the methodology for criteria selection and framework development see the Stage 1 report from this project: Criteria and methods for evaluating Regional NRM Plans In Tropical Savannas Regions, Stage 1 Project 3.2.1 report, TSCRC.
Why a northern Australia focused framework?
As a broad generalisation, the tropical savannas exhibit relatively low productivity of soil and pasture resources and high spatial and temporal climatic and resource variability. In contrast to southern Australia, the natural resources of the north are still being developed, land use pressures are in general low and many landscapes are still relatively intact. There are however issues of degradation caused by overgrazing, intensification, fire and pest plants and animals and other pressures.
When evaluating regionally focussed plans seeking to address these problems, it is essential then that the evaluation framework reflects or is tailored to an understanding of the regional landscape characteristics in which planners are working. Figure 1 below, shows the bioregions of the tropical savannas.
Figure 1. Bioregions of the Tropical Savannas of Northern Australia
What does the framework actually evaluate?
The framework has been designed to provide both plan developers and plan reviewers a structured approach for evaluating the existing or proposed technical content of regional NRM plans in Northern Australia.
To summarise the three key questions stated in the introduction, the framework can be used to evaluate –
“To what extent are desirable regional planning outcomes (savanna health criteria) reflected in the major plan-making components, and, what is the quality of information being used in these steps?”
Analysing the results of the evaluation may identify:
• key strengths and weaknesses of plans; • priorities or guidance for further investment, • key lessons or adaptive management opportunities in plan review.
When several plans in a given region are evaluated using the framework, a picture emerges of the ‘overall’ regional planning effort or focus in terms of the scope and relative strengths and gaps in regional plans. It may also help identify opportunities for linkages or integration with other regional plans on the basis of complimentary or shared monitoring, investment or actions.
Figure 2. Outcome based criteria for regional plans
Socio- Economic Biophysical Institutional environmen environmen environmen
Savann health
Socio- River & Carbon Soil & Biodiversity Economic & Catchment Balanc Pastur Institutional Health Health
Regionally- focused Savanna Health Criteria
PLAN EVALUATION
How to apply the framework
It may be helpful to readers to refer to the framework as presented in Table 1 while reading through the following section. There are three parts to the framework that need to applied:
1. Outcomes-based Criteria
Does this plan consider the critical issues (or criteria) for regional sustainability relevant to northern Australia?
There are twenty-four planning outcomes-based criteria (see Figure 2 and Table 1). These have been developed from five broad criteria areas: • Society, Economy and Institutions • Biodiversity • Soil and pasture health. • Catchment and river health. • Carbon.
These criteria reflect the generalised, desired planning outcomes for northern Australia savanna regions at the region or landscape scale. They are derived from core threats and issues for these regions and adaptation indicators developed for monitoring condition and trend in these landscapes. They cannot be prescriptive as to plan content but offer the reviewer (and plan developer if used in a more formative way) a structured and explicit approach to evaluating (or designing) the planning documentation. The criteria and application notes of the guide should be consulted for more information on each of the criteria and their application.
2. Plan Components
In which parts or ‘components’ of the plan are these issues addressed?
Plan components are the important plan ‘parts’ which represent and document the mechanics of the plan. The five key plan components are:
• Information • Objectives and Targets • Options • Priorities • Implementation • Monitoring and review
These plan components have been derived from EMS ISO14001 components as well as the emerging models of planning being currently presented through the National Action Plan for Salinity and Water Quality and the Natural Heritage Trust. Again, these components may be modified to suit the specific plan or may be applied in a best-fit type scenario.
3. Rating scheme
How comprehensively does this plan address these criteria in terms of the technical information applied?
A descriptive five point rating scale is used to assess the quality of the information incorporated into the plan for each criteria / component relationship. This rating scheme is presented in Table 2 below.
4. Approach
There are two possible approaches (and probably more) to applying the framework to a plan (See also Table 1):
1. Plan reviewers can move methodically through the Outcomes based criteria, locating where these criteria are addressed in their plans (which components) and then assigning a rating to how comprehensively this criteria is addressed using the above rating scheme.
OR
2. Plan reviewers work methodically through the parts (components) of their plan – in a best fit type approach using the components presented – identify the criteria addressed in each part, and assign a rating.
Important issues and limitations
There are a number of important points to consider when using the evaluation framework presented here, including limitations of the approach:
• Importantly, this framework is limited to the plan itself – it does not attempt to evaluate the important considerations of planning process or the actual outcomes of implementing the plan. It is intended as an adaptive management tool for improving the technical content-based development of planning documentation as an important management blueprint for planners and their organisations. • Where a plan is being designed to meet program-based accreditation criteria, the savanna regions criteria provide a broader issue-based framework within which programmatic criteria can be considered. As such, these criteria complement rather than compete with more specific program requirements such as those required by NAPSWQ or NHT2. • It is also important to emphasise that the whole set of outcomes-based criteria would rarely be encompassed by a single plan. • The criteria and application notes of the guide should be consulted for more information on each of the criteria and their application. These notes provide a detailed description (and rationale) for each criteria and present practical examples, case studies and guidance on how the criteria could be represented within a given natural resource management or development plan. • We suggest (and expect) that regional planners will seek to ground truth or modify the criteria and incorporate more specific regional or program-based requirements. The same can be said for the planning components.
Table 1 Standard’ criteria and plan component-based evaluation framework for technical content of regional plans in the tropical savannas
Plan component framework for assessment Key Criteria Outcomes-based Criteria for Regional Plans 1. Information - 2. Objectives & 3. Options – 4. Priorities – 5. Implementation Monitoring & (Derived from sustainability attributes for tropical savanna regions. Regional profiles, Targets - including impact inputs, processes including actions, Review - including, Areas See criteria application notes for guidance in use) condition and trend, aspirational, assessment, and tools used investment, indicators, situation analysis resource condition feasibility, cost- agreements etc evaluation and or mgt targets benefit etc. reporting Apply Rating 1. Stakeholders participating effectively in regional planning and decision-making Scheme (p. 5 Part A)
2. Regions consider population, employment and infrastructure requirements for regional sustainability
3. Regions are able to respond positively to external change pressures
4. Indigenous values are recognised and indigenous cultural heritage is protected
Society, 5. Social and economic impacts are considered and costs of resource management shared equitably
Economy and Institutions 6. People are actively involved in groups and networks
7. On-going learning, skills development and training is supported
8. Adequate information and technical support available for decision-making
9. Economic viability of savanna industries is improved at enterprise and industry scales
10. Institutions are aligned with regional ESD planning and management priorities
7 11. Soil and water salinity levels are maintained or improved
12. No leakage from land use to other systems (water quality in streams and lakes is maintained) Catchment and River Health 13. Physical structure and environmental flow regimes of streams are maintained
14. Groundwater levels are maintained
Carbon 15. Above and below ground carbon stocks are maintained
16. Progress towards a comprehensive, adequate and representative reserve system
17. Landscape structure and complexity are maintained
Biodiversity 18. Ecosystem diversity is maintained
19. Species diversity is maintained
20. Ecosystem integrity is maintained
21. Soil condition and health maintained
22. Pasture condition and health are maintained Soil and Pasture Health 23. Effective resource capture and retention (minimisation of soil, soil nutrient and water loss)
24. Appropriate fire management regimes are maintained
Table 2: Descriptive rating scheme for criteria / component relationship
Assessment Description Rating
Not relevant Many plans have defined scope and a criterion may be deemed (code as 1) irrelevant. Care needs to be taken in assigning this rating given the commitment of NRM planning to sustainable development and the consideration of social, economic and ecological criteria. Where there is any doubt as to the relevance of a criterion, this rating should not be used.
Not included or This rating is for plans where a given criterion for a planning identified element is not covered in any meaningful way at all. This (code as 2) applies to plans that simply mention an issue in most general terms in overview sections.
Identified and This rating applies to criteria that have only been identified as a described only given criterion for a planning element without addressing it in (code as 3) specific terms that have some concrete local interpretation. There would be little or no analysis.
Moderately This rating applies to a criterion for a planning element that has detailed been clearly identified and addressed in specific local terms description with a moderately detailed description based on desktop data with limited with some analysis. analysis (code as 4)
Comprehensive Detailed description and analysis based on a combination of systematic desktop and field data with analysis based on wide range of analysis data sources (code as 5)
Criteria and Application Notes
Introduction and purpose
This document is the second part of a guide for regional planners and plan reviewers. The framework presented in this guide has been designed to provide both plan developers and plan reviewers a structured approach for evaluating the existing or proposed technical content of regional NRM plans in Northern Australia.
The two parts of the guide are:
• Framework Basics – introduces the main parts of the framework – the criteria, plan components and rating scheme - and describes how it may be applied to evaluating regional plans; and,
• Criteria and application notes - this document - provides a detailed description of each of the regional planning criteria, a rationale for their selection and a set of application notes that point to examples of ‘what to look for’ when applying the criteria.
The framework can be used to evaluate –
“To what extent are desirable regional planning outcomes (criteria) are reflected in the major plan-making components, and, what is the quality of information being used in these steps?”
A word on using the application notes
These application notes can be considered as practical examples or case studies on how the criteria could be represented or addressed within a regional natural resource management plan. They are not intended to be prescriptive as to plan content but offer the reviewer (and the plan developer if used in such a way) a structured and explicit approach to evaluating (or designing) the planning documentation with respect to addressing regional savanna sustainability criteria in the plan.
The source report for this guide is: Criteria and methods for evaluating Regional NRM Plans In Tropical Savannas Regions, Stage 1 Project 3.2.1 report, TSCRC. This report contains the relevant rationale, methodology and references for the selection of criteria.
Outcomes-based Criteria for Regional Plans and Application notes Outcomes- based Criteria Description Application Notes for Regional Plans 1 Stakeholders Transparent, inclusive and • A profile or overview of participating effective processes for communities in the region effectively in regional stakeholder participation (including geographical, planning and are widely recognised as demographic, cultural, sectoral or decision-making critical for successful industry based); outcomes in regional • Sectors, communities and their planning and decision- representatives are sufficiently making. Benefits include resourced to be able to participate improved capacity for equitably, stakeholder-specific adaptive management, processes and approaches used improved understanding of when required and constraints to resource management participation are recognised and problems and solutions planned for (e.g. distance, amongst stakeholders; remoteness, financial, cultural alternative information etc). sources and values • Key stakeholders, participants and considered; improved contributors to the planning involvement in process are identified and implementation and recognised in the plan. reduced conflict. • The diversity of stakeholder attitudes and values on critical issues are recognised and/or documented; • Communication and consultation planning have been undertaken (e.g. including awareness raising and communication activities about the planning activity); • Evidence of conflict resolution processes, structured negotiation arrangements or clear decision- making processes used or proposed are outlined; • Terms of reference, roles or responsibilities of representative or consultative structures and participants roles generally are clearly defined (e.g. reporting or decision-making requirements); and, • Plans identify performance measures associated with effective stakeholder or sector based participation and broader community engagement including: reviewing priorities, setting goals and targets, developing monitoring frameworks and supporting implementation.
Outcomes- based Criteria Description Application Notes for Regional Plans 2 Regions consider What defines a desirable • Planning for regional growth population, population will differ pressures in high in-migration employment and between regions and regions, estimating required infrastructure stakeholders, however the resources and regional capability requirements for population structure, to support and manage growth; regional employment and • Analysis of relevant statistical data sustainability infrastructure provision sets (ABS, ABARE etc) such as influences economic activity mobility (including youth and and viability; social indigenous mobility), youth net cohesion, health and self- migration rates and age sufficiency through family dependency ratios in terms of and other social support trends and spatial distribution for networks, industry their communities; adjustment and perceptions • Analysis of employment by of quality of life. The industry type and employment and provision of adequate under-employment trends; transport and • Where possible population, communications industry or employment data is infrastructure has concorded (statistically matched) considerable implications to IBRA, catchment or SLA level for economic activity and for larger regions or relevant social activity (maintenance primary source data is collected or of social networks, familial used (e.g. local social survey ties and access to human, information); recreational, cultural and • Some analysis of industry and educational services). community specific profiles is undertaken, and where relevant ‘masking’ of pastoral / rural communities by adjacent urban or mining-related settlements accounted for; • Community values on population, infrastructure provision and employment opportunities articulated; and, • Existing and proposed regional infrastructure, its condition and location is documented and mapped, infrastructure priorities are identified and impacts of existing and proposed infrastructure on social and landscape health are assessed including cumulative impacts.
Outcomes- based Criteria Description Application Notes for Regional Plans 3 Regions are able to Savanna regions are highly • External change pressures respond positively to susceptible to shifting on the region and their external change national and global contributing factors are pressures economic, social and identified including emerging political priorities. This relevant international, means community vitality national and state level policy and industry viability and planning agendas or depend on a proactive and relevant market trends or positive response by export demand; regions to change – that is - • Some assessment of adaptability is considered a regional or sector based key element of sustainable sensitivity to change, habitation in the resource dependency, or rangelands. present and future resource use/demand trends identified and analysed; • Natural resource condition indicators and monitoring systems are linked to relevant indicators designed to identify and track ‘pressures’ (e.g. through a Pressure-State-Response type approach); • For key savanna industries such as pastoralism, structural adjustment pressures (and spatial and temporal trends) recognised, analysed or mapped • Land use change is mapped and/or analysed; • Relevant case studies on change management and adaptive management are identified or used in someway; • Internal and external stakeholder values are monitored and considered in planning and decision- making; and, • Specific investments or strategies identified for managing change pressures on the region including capacity building of regional community, planning processes or particular sectors to manage change effectively. Outcomes- based Criteria Description Application Notes for Regional Plans 4 Indigenous values are Recognition and inclusion • Traditional owner, land recognised and of indigenous values and council and other indigenous cultural heritage is aspirations into planning stakeholders are recognised protected. and management is a key and identified in the plan; attribute of healthy savanna • The plan integrates with, regions. This includes where appropriate, existing supporting participation and and emerging indigenous culturally appropriate planning associated with consultation processes, and Indigenous Land Councils, integrate, where Native Title Representative appropriate, indigenous Bodies and regional planning and management Traditional Owner groups; activities associated with • Evidence of use of culturally cultural heritage, traditional appropriate consultation ownership and native title. and/or participation The maintenance and processes for plan management of cultural development and heritage linked with implementation; community identity, spiritual • Plan explicitly seeks to needs, human health and achieve: protecting access; economic diversification is maintaining sites, also important. coordinated land management among neighbouring estates etc. • Cultural heritage sensitivity ‘zone-based’ mapping is used in resource planning, • Cultural heritage resource surveys are referred to and considered as inputs to land use planning; • The plan supports or is linked directly to mechanisms that support the appropriate management of indigenous cultural heritage (e.g. cultural heritage registers, regulation or policy); • Indigenous knowledge on resource or land management is incorporated; • Collaborative action or investment with indigenous stakeholders is proposed; • The lead agency for cultural heritage protection is involved in plan development monitoring and implementation. Outcomes- based Criteria Description Application Notes for Regional Plans 5 Social and economic Social and economic • Formal social and economic impacts are impacts of decisions impact assessment considered and costs regional communities need methodologies employed ie. of resource to be considered. Issues impacts of proposed actions management are such as ‘cost-sharing’ for or investments explicitly shared equitably sustainable development; identified, analysed and perceived decline in supported by qualitative or property management quantitative assessment rights; conflict between methodologies, potentially resource users; the including: social surveys, application of appropriate interviews, economic incentives or market based modelling of impacts of instruments require the proposals, cost-benefit inclusion of social and analysis, public/private economic information into benefit testing; NRM decision-making • Identified impacts are frameworks and within incorporated into the monitoring on a regional decision-making process and biophysical unit basis. through a range of practical This is critical in addressing tools or approaches e.g. equity, and the perceived negotiation of mitigation equity of resource strategies or investments; management decisions. decision-support technologies such as multi- criteria analysis; • Social or economic criteria for funding allocation or investment priorities are used; • Plans monitoring and evaluation framework includes indicators track the effects of significant investments or decisions; and, • Plan seeks to institutionalise social and economic assessment as part of its planning process. Outcomes- based Criteria Description Application Notes for Regional Plans 6 People are actively Groups provide local points • The plan recognises and involved in groups of contact and processes promotes membership or and networks for improved awareness involvement in groups and and involvement in of NRM networks as an important decisions and planning. contributing factor to They also provide social improved efficacy, support and social networks adaptability and innovation for members in human- (including in sustainable land service poor environments. management practices); Involvement in land • Membership or group management related participation rates is analysed networks supports informal as part of the regional social & formal training profile; opportunities, peer level • Membership or involvement support for trialing is applied as a performance innovative practices and measure or indicator of bolsters individual, strategies to improve community and regional stakeholder involvement or capacity for adaptive support information networks; management. • Relevant group activities and priorities in the region are assessed to determine what support is required / is provided for coordinated planning and investment outcomes (especially in voluntary planning contexts).
7 On-going learning, Involvement in formal and • Existing participation levels in skills development informal education and relevant learning and training and training is training has been found to activities are recorded; supported have a strong relationship • Preferred stakeholder learning to land manager capacity styles and environments are for change at a regional known; scale. Participation in and • Training needs analysis for access to these training stakeholder groups conducted opportunities for all with stakeholders active in resource managers setting priorities for required (including government) also training and education contributes to self- investments. sufficiency, equity and • Investment and/or support general well being. The identified for activities such as different land users or Property management sector-groups of the tropical planning, QA, Grass Check savannas have specific training; Landcare, Saltwatch, learning styles and Water watch, catchment or requirements and NRM similar field days; rural agencies need to consider leadership or self-development this when designing courses; university, TAFE or activities targeted at this distance education; short sector. courses such as chemical accreditation and WHS related training. • Indicators related to training and learning are included in monitoring and reporting frameworks. Outcomes- based Criteria Description Application Notes for Regional Plans • Evaluation systems (as part of the learning cycle) are hardwired into the plan itself as well as promoted within the implementation of the plans strategies through projects or investments. 8 Adequate information The adequacy and • Preferred information sources of and technical support availability of sound stakeholder groups and current available for decision- technical support and access and use levels (including to making information for resource information technology) are managers is widely analysed; accepted as a critical • Access to and use of information criterion for sound regional technology-related tools that support NRM planning and integrated decision-making such as decision-making There are decision support systems or considerable differences Geographical Information Systems; between regional industries • Regional information and data needs or sectors’ access to and are assessed including existing gaps use of information. Access and priorities in data and information to information becomes identified. even more critical due to • Investment in improving the regional the need in savanna information management system is regions for managers to identified including the establishment make resource or negotiation of a distributed management or business regional information system management decisions in incorporating monitoring and remote contexts. reporting tools and indicators. • Investment links to training, information systems, extension services and aligning R&D culture and operation are identified. 9 Economic viability of Despite rapid changes the • Farm financial and agro- savanna industries is well being of human economic data trends improved at populations in savanna analysed at regional and enterprise and regions is currently tied to industry scales industry scales the viability of traditional • Key data sets might include agricultural, pastoral and farm cash income, family natural resource-based members working on farm, off- industries and increasingly farm family income, profit at important tourism and full equity, farm equity ratio, recreation industries. Long- median income (region) and term viability of pastoral economic diversity (region), enterprises in particular is required living areas. considered a potentially • Plan promotes diversification important vehicle (and and innovation, business constraint) for the management systems, QA sustainable management of and relevant accreditation the natural resource base systems as production and social cohesion of options, supports ‘clean and many savannas regions. green’ production and supply chain marketing focus. • Data on employment and income generating contribution of tourism (including indigenous cultural tourism) and recreation industries tabled or assessed. Outcomes- based Criteria Description Application Notes for Regional Plans 10 Institutions are How well do regional • Awareness of (listing) other aligned with regional institutions (organizations, relevant regional and sub-regional ESD planning and agencies etc) conduct and planning activities and formal management prioritise their activity to be consideration of the functional priorities consistent with regionally relationships with these bodies; identified ESD planning and • Plan or investment plan is management needs. developed cooperatively by a Removing or lessoning the range of regional stakeholders effects of legislative, policy including participation of other or incompatible R&D as regional planning agencies or barriers to regional organizations; sustainability is important. • Clear agreements, arrangements Historically poor institutional or partnerships for collaborative coordination and cross- action exist amongst stakeholders - agency support for plan presence of MoUs, MoAs or development and ‘regional handshakes’ are implementation has been established between stakeholders / the norm. Evidence of sectors for planning activities for agreements or collaboration on investment (NB: arrangements for These may not be included in the collaborative action imply actual planning documentation but an awareness of the need may for part of the implementation for a coordinated approach, arrangements or process, there integrated outcomes and should however, be some stated the respective efficiencies intent to develop these and benefits of partnerships and possibly a organizational coordination proposed process for doing so, in the plan); • Communication, implementation or policy development protocols are proposed or developed; • Evidence of in-kind or financial contributions to meeting shared regional priorities or cooperative projects / actions developed; • Regional ESD priorities are clearly articulated in plan and where these are shared with other institutions; • Policy, legislative or other such barriers/ supports for sustainable natural resource management outcomes in the region are identified. • R&D institutions are considered as contributing stakeholders in the planning, investment and implementation phases; and • Support for developing and trialing cost-effective technologies at farm and catchment scales that support sustainable development. Outcomes- based Criteria Description Application Notes for Regional Plans 11. Soil and water salinity In the tropical savannas, Assessment and Analysis: levels are maintained the area affect by salinity is • Digital mapped information is or improved currently relatively small. required on climate, geology, soils Salinity is uncommon in and topography plus vegetation areas with <600 mm cover and land use. Scale 1:250,000 rainfall, or in areas of high or better at catchment scale. rainfall >1500 mm. • Assessment and modelling of salinity However, scientific hazard based on geology, soil evidence suggests that all attributes, vegetation cover and the factors that contribute to topography. salinity hazard in southern • Assessment of current surface water Australia also exist over salinity conditions, including large areas of the semi-arid recharge and discharge areas, zone of northern Australia. surface water quality. The risk of increased soil, • Models of the risk/hazard of surface stream and groundwater and groundwater salinity associates salinity is potentially an with broad-scale clearing. important savanna health • Groundwater resource assessments issue in several regions, and modelling. This should include especially the Fitzroy and assessment and models of the Burdekin catchments of interaction of groundwater levels, Queensland and the Ord groundwater quality, aquifer/soil Irrigation Area of the descriptions (lithology, confined, Kimberley, Western unconfined, semi-confined), aquifer Australia dimensions, sustainable yield assessments, bore locations, source of recharge to identify high hazard areas and priority management issues. • Sub-catchment scale assessment and analysis will require much more detailed information based on preferably 1:50,000 maps. • Objectives and Targets could include - Soil and water salinity levels maintained at close to baseline or current conditions; Minimise risk of increasing salinity levels by maintaining minimum 30% deep-rooted native vegetation cover at the sub-catchment and regional- scales; Maintain the quality of groundwater.
Outcomes- based Criteria Description Application Notes for Regional Plans 12. No leakage from land The water quality and Targets are specified for the use to other systems biological integrity of maintenance and improvement of (water quality in streams and lakes are a water quality in management streams and lakes is reflection of land use and regions considering: maintained) land cover within the • The management issue the catchment. This criterion is condition of the catchment closely linked with criteria • type of ecosystem (e.g., rivers 23 (resource capture and upland; rivers lowland, retention in production wetlands, estuaries). landscapes). Total nitrogen • range of scales and time and total phosphorous frames concentrations are elevated • Management action targets in a significant portion of that have a shorter time span Queensland’s waterways, (1-5 years) than the regional including the Fitzroy Basin. resource condition target. Little is known of the water • Resource condition targets that quality in the northern and are specific, and time-bound western areas of the State. targets used to work towards In the Kimberley Region of the overall goal or vision for the Western Australia, the water body in the medium term expansion of irrigated (10-20 years). agriculture, especially • Are measurable by linking to cotton and sugar in the Ord monitoring indicators, including: River catchment, with the Dissolved oxygen; pH; potential for further Electrical conductivity (EC); schemes, has the potential Total nitrogen; Total to have major impacts on phosphorous; Pesticides; river health in the region. Heavy metals; Algal blooms; Sediment/suspended solids; Biological indicators such as insects, algae, fish, plants that can provide information on the ecological condition of a water body.
Outcomes- based Criteria Description Application Notes for Regional Plans 13 Physical structure and Compared to southern Assessment and analysis: environmental flow Australia, the • Assessment and monitoring of regimes of streams are environmental flow of most medium-long term trends in maintained rivers of northern Australia environmental flows in streams and is not regulated by lakes. barrages, dams, weirs and • Comprehensive assessment and levy banks. In the Murray- analysis of the Darling basin, excessive environmental/ecological water harvesting for consequences of decline in irrigated agricultural crops environmental flows such as cotton reduces • Source and rates of water environmental flows with harvesting be assessed and resulting changes in monitored. abiotic and biotic • Changes in structural indicators of processes. Proposed river health including: Channel similar large schemes for habitat types and dimensions, northern Australian rivers Extent and condition of riparian would have similar vegetation; Number of dams, impacts. Environmental barrages and weirs. flows in the Ord River in Targets and thresholds: northwest Western • Water allocation Australia and the Burdekin scenarios/modelling developed and Fitzroy Rivers in • Environmental flow allocations Queensland, are already clearly articulated and supported modified by irrigation with condition and trend information schemes. and monitoring frameworks • Non-statutory plans consider / reflect environmental flow allocations in statutory planning (e.g. targets relating to maintaining, improving or supporting environmental flows, • Water efficiency measure and programs are proposed and supported to minimise environmental and production costs. Outcomes- based Criteria Description Application Notes for Regional Plans 14. Groundwater levels are Groundwater is water that Assessment and analysis: maintained occurs beneath the • Assessment of groundwater levels surface of the earth. It is and trends including rate of available over most of recharge Australia and in many • Assessment of the number of free- parts of the country, flowing and capped bores. especially the arid and • Assessment of the number and semi-arid inland, it is of distribution of dry bores. critical importance for both • Assessment of the condition and domestic, grazing and trend of ecosystems dependent on irrigation use. Some groundwater (e.g. mound springs) systems such as the Burdekin Basin are under Targets and thresholds: stress from over use of • Maintain or improve groundwater resources. Others, such as levels across the management the Daly River Basin in the region. NT are in relatively good • High proportion of bores capped condition. In the Great (e.g. >90%) Artesian Basin, the present rate of extraction is about 0.5 million ML/year At the present rate of extraction, the remaining supplies may only last a few decades. However, present wastage is over 80%. Outcomes- based Criteria Description Application Notes for Regional Plans 15 Above and below Major factors causing Assessment and Analysis: ground carbon stocks changes in carbon stocks in • Inventory of carbon stocks in the are maintained the tropical savannas are region based on satellite (preferably land cover change through Landsat TM) estimates of Foliage clearing, and grazing Projective Cover (FPC) and basal pressure. Clearing: Native area. forests and woodlands are • Estimates of above-ground woody large sinks of CO2. Land biomass based on basal area of use and land use change woody plants. affect the amount of carbon • Estimates of below-ground woody stored in the soil and biomass based on basal area of vegetation. Clearing of woody plants. native forests and • Assessment of risk of land woodlands in Queensland degradation from excessive grazing is estimated to have pressure, and resulting changes in resulted in 54.5 Mt CO2 soil carbon stocks. emitted in 1999. Thickening Targets: of woody vegetation in Regional NRM plans should seek to grazed woodlands also maintain carbon stocks by: represents large carbon • Reducing the rate of clearing of fluxes. Grazing pressure: In forests and woodlands for non-forest the degraded grazing lands use; of northern Australia, • Protecting and enhancing soil adoption of reduced carbon stocks through management stocking rates has been to reverse deteriorating land estimated to have the condition and protect against future potential to increase carbon land degradation; and sequestration in the top 10 • Increase in standing biomass cm of soil by 0.24 t through regeneration on previously Carbon/ha/annum, a total of cleared areas. 315 Mt Carbon over 30 years. Outcomes- based Criteria Description Application Notes for Regional Plans 16. Progress towards a A comprehensive, • Maps of existing reserve system comprehensive, adequate and and regional ecosystems, including adequate and representative reserve wetlands and endemic ecosystems. representative reserve system is critical to • system Gap analysis of conserving biodiversity at a comprehensiveness, adequacy and bioregional scale. Reserves representativeness of existing protect native ecosystems reserve system and biota from the • Plan should aim to achieve deleterious effects of representation of all ecosystem human land use. However, types in protected categories as maintenance of biodiversity defined by IUCN, with 10-15 % of within reserves is the pre-1750 area protected for dependent on sound each IBRA bioregion. environmental management • Critical habitats such as endemic of disturbances such as communities and highly sensitive fire, weed invasions and ecosystems such as mound springs feral predators. Endemic should be adequately protected. ecosystems/communities • Wetlands represented in protected and highly sensitive areas grouped according to vegetation communities international (RAMSAR), national and landscape elements and regional significance. such as mound springs • Wetlands listed under RAMSAR may need specific should be given high level (e.g. protection, both within and >80%) of protection outside reserve system. Wetlands are key biodiversity elements in the tropical savannas, and are highly sensitive to grazing impacts and biological invasions. It is important that the full complement of wetland ecosystems be adequately protected from these exogenous disturbance processes Outcomes- based Criteria Description Application Notes for Regional Plans 17. Landscape structure Habitat loss through Assessment and analysis: and complexity are clearing has a major • Recent maps of landscape maintained impact on regional biota. structure classified NRM plans should seek to according to land cover (e.g. minimise loss of native SLATS land cover data in vegetation, by setting Queensland, which is retention thresholds classified in forest, preferably > 50% in woodland, cleared, cropping fragmented landscapes etc). and minimising clearing in • Assessment and analysis of intact landscapes. These the level of habitat loss and criteria should apply fragmentation in the region, equally to both freehold including proportion native and leasehold lands. Large vegetation remaining, mean patches provide core patch size, number of habitat for forest and patches > 1000ha, total woodland dependent length of edge habitat, fauna species, and are riparian vegetation and better able to buffer landscape connectivity. increased external abiotic Targets and thresholds: influences such as fire and • Intact bioregions with >90% climatic variability. native vegetation remaining Improved pastures and (e.g. Cape York): preferably permanent cropping no clearing represent permanent loss • Fragmented bioregions with and conversion of native 40-60% native vegetation ecosystems. They have remaining such as the low habitat value to the Brigalow Belt North: majority of regional biota, minimum threshold >30%, and are an important preferably no clearing below source of biological 50%. invasions. Cropping also • Large patches of core represents permanent habitat should remain intact. barriers to movement for • Mean patch size should most native biota. remain constant or increase compared to current baseline levels. Edge habitat should remain constant or decrease compared to current baseline levels. • Improved pastures and cropping- Maximum 30% in fragmented landscapes, Maximum 10% for intact landscapes Outcomes- based Criteria Description Application Notes for Regional Plans 18. Ecosystem diversity is Clearing targets Assessment and analysis: maintained ecosystems on more fertile • Mapping of regional ecosystems at soils. It is important scale of 1:250,000 or better. therefore to ensure NRM do • Assessment of the conservation not reduce and fragment status compared to original or pre- native ecosystems to a clearing extent. level where their long-term • Assessment and analysis of viability is at risk. Altered condition of grazing and fire fire regimes pose a major sensitive regional ecosystems such threat to fire-sensitive as riparian areas and monsoonal savanna ecosystems such vine forests. as monsoonal vine forests. • Special attention should also be Regional fire management given to native grassland strategies should ecosystems and changes in tree- adequately take into grass ratio. account the risk of fire to • Comprehensive assessment of ecosystems so as to ensure pasture composition and structure their long term health. Key (cover) by land systems within the management factors region. This should include include timing and intensity desirable grass species, and the of burn. Excessive grazing level of pasture deterioration and pressure tends to degradation. concentrate around Targets and thresholds: watering points and in • No ecosystem should become riparian landscapes, endangered or threatened as a altering the structure and result of a planning action. composition of affected • Intact landscapes: no regional ecosystems and negatively ecosystem should be cleared to impacting on their long-term below 70% retention threshold. health. Barrages, dams and • Fragmented landscapes: no weirs disrupt environmental regional ecosystem should be flows and change the cleared below 30% retention health of aquatic threshold. ecosystems. • NRM planning actions should not negatively impact on riparian ecosystems, which are sensitive habitats and require protection from exogenous disturbances associated with grazing, clearing and draining. • Need to assess area of vegetation burnt, by frequency and intensity and vegetation/ecosystem type.
Outcomes- based Criteria Description Application Notes for Regional Plans 19. Species diversity is The tropical savannas have Assessment and analysis of trends in maintained a rich diversity fauna and key fauna groups including: flora species. It is important • Ground-dwelling vertebrate and that both fauna and flora invertebrate fauna are dependent on populations are maintained adequate perennial grass and ground as viable populations and cover to provide shelter and food. Loss not forced into local or of cover results in reduced food supply regional extinction. for taxa such as granivorous birds, Important threatening ground-dwelling mammals and reptiles, processes to species reducing habitat quantity and quality, diversity include altered fire and exposing species to increased risk regimes, changed water of predation. regimes, clearing and land • Frugivorous and nectarivorous bird use intensification, climate species dependent on fruits and nectar change and biological of monsoonal rainforest and eucalypt invasions. Savanna ecosystems. ecosystems also support a • Arboreal marsupials such as the rich flora of herbaceous and koala, possums and gliders dependent woody species. It is equally on tree cover and hollows. important that threatening • Invertebrate species such as processes such as grasshoppers, ants and termites. excessive grazing pressure Targets and thresholds: and intensive fires be • No increase in the number of adequately managed to endangered species. ensure the long-term • Number of recovery plans in place. viability of these biota. This • No net reduction in species is particularly important in distribution and abundance or more the face of potential common fauna and flora species changes induced by climate • Plans develop strategies and actions gradients and also the to ensure long term conservation of the threats posed by biological rich diversity of savanna fauna and invasions. flora through the safe management of
grazing pressure (see soil and pasture
productivity indicators).
Outcomes- based Criteria Description Application Notes for Regional Plans 20. Ecosystem integrity is The invasion of woody • Rigorous assessment of maintained species can disrupt the distribution, density and impacts of ecological balance between weeds species within the region grass and trees within the and investigation of appropriate savannas landscape control measures for these species reducing pasture production using best available knowledge. and altering vegetation • Proven effective management structure. Some ways in strategies for the control and which weeds can decrease prevention of spread of weeds the soil and pasture within the region based on productivity include comprehensive review of reductions in growth of information of the ecology and desirable pasture species, dispersal modes of the weed increases in soil erosion species. and changes in fire regime. • Effective management strategies to Pest species can increase aid the identification of new weeds grazing pressure on and to prevent the introduction of pastures and cause weeds to the region. significant soil degradation • Prioritisation of significant weed as well as preying on native species within the region in animals and livestock. Land accordance with list of weeds of uses can only be national significance sustainable where the land • Rigorous assessment of type is capable of distribution, abundance and impact maintaining that use. of pest species within the region Where land uses and and investigation of appropriate practices are unsuitable to control measures for these species the land type on which they using best available knowledge are occurring changes in • Proven effective management the landscape such as strategies for the control of pest biological invasions can be species within the region, including a warning sign to this strategies to prevent further factor. introductions, based on comprehensive review of best available knowledge. • Prioritisation for control measures of significant pest species within the region • Detailed checklist and comprehensive assessment of the risk of biological invasion associated with land use intensity (including extent of land use change, extent of grazing disturbance, control of exotic introductions and control of clearing) • Effective management strategies to assess and control the risks associated with the increase of biological invasion through increased land use intensity Outcomes- based Criteria Description Application Notes for Regional Plans 21 Soil condition and Declines in the soil Assessment: health maintained condition may lead to • tables and maps of soil resource degradation of the attributes within the region (including production and natural soil type, soil erosion risk, soil fertility, systems on which various soil structure, soil sodicity, soil acidity, land uses are dependant. It dryland salinity risk, water availability, is essential to have landform, geology and hydrology). knowledge of the soil • analysis, tables and maps of current resource attributes, such as soil condition and trends in soil soil fertility and structure, as degradation (including extent of these attributes will changed soil condition, and changes influence the effectiveness in area of land subject to soil salinity of land management and soil erosion) actions and the impact • analysis of land capability according various land uses have on to all current and potential land use each land system. interests within the region. • risk assessment of land use suitability The outcomes of various according to key resource attributes of management tools used to the region and the risks of particular improve the health of soil land uses. are dependent on current • maps detailing the suitability of land condition of the soil. For systems within the region to various example, the land uses including uses such as implementation of a regime pastoralism, clearing for broad-scale of regular burning on cropping, and horticulture/forestry. degraded soil may result in Actions: further depletion of the • align land uses with land systems nutrients within the soil. with which they are most suitable. Additionally, the higher the • strategies to minimise the risk of land ratio of bare soil patches to degradation through land use vegetation patches the intensification higher the impact of rainfall • soil condition monitoring framework events on the soil resulting based on a combination of on-ground in soil loss and reduced soil field assessments, remote sensing fertility. and GIS to detect changes in soil condition • control measures to rehabilitate degraded soils and to prevent further soil degradation • No net increase of bare soil patches and groundcover maintained well above 40%. • Limit clearing on landscapes susceptible to erosion and with low nutrient soils. • strategies consistent with state and national policy and incentives to encourage PMP including drought management to minimise areas of bare soil. Outcomes- based Criteria Description Application Notes for Regional Plans 22. Pasture condition and Within semi-arid tropical Assessment: health are maintained ecosystems, perennial • assessment, tables and maps of the grasses control the key pasture attributes (including distribution of scarce desirable pasture species, species resources such as water type and composition, and perennial and nutrients and hence, plant cover) within the region the productivity of the • analysis of land capability of current landscape. Pasture and potential land use interests in condition within the region region needs to be known to • maps and tables detailing the current identify whether remedial condition of the regions pasture action is necessary and to resources. identify appropriate • assessment of trends in pasture management tools for the degradation (including changes in continued management of cover and species composition of the pastures. Monitoring of desirable native perennial grass pasture condition at the patches, changes in number of regional level is essential to property management plans that recognize broad scale include drought management changes in pasture considerations). productivity. • assessment of ‘safe’ pasture utilisation levels according to land The level of pasture systems and key resource attributes utilisation needs to be (threshold for pasture utilisation less considered to be able to than 25-30% during the late summer calculate sustainable period). stocking rates. A ‘safe’ level • analysis and assessment of the is the amount of pasture ‘safe’ stocking rates and carrying that can be utilised before capacity for different land systems degradation of the soil and Actions: pasture resource occurs. • strategies to minimise the risk of land The calculation of ‘safe’ degradation through land use carrying capacities allows intensification (i.e. water point identification of the grazing intensity) pressure that can be • monitoring framework to detect sustained before changes in pasture condition and to deterioration of production review trends in pasture condition. or land condition. If actual • control measures to rehabilitate stocking rates are degraded pastures and to prevent maintained above the safe further pasture degradation based on carrying capacity then review of best available information degradation of the pasture and specific to land type. resource will occur • pasture management strategies (including drought management) to encourage ‘safe’ pasture utilisation levels according to land type including protection of land types particularly vulnerable to excessive grazing. • ‘safe’ stocking rates based on calculated ‘safe’ pasture utilisation • control measures for the control of density of woody weeds Outcomes- based Criteria Description Application Notes for Regional Plans 23. Effective resource Highly dysfunctional • Assessment and analysis of the capture and retention landscapes lose resources potential risks of resource loss (minimisation of soil, to runoff and winds. The (including loss of soil, nutrients, and soil nutrient and water maintenance of water) from the land systems loss) groundcover is crucial to including causes of resource loss ensuring the capture and • Strategies outlining specific retention of vital resources measures to reduce the loss of and hence, maintenance of resources within various land the productivity of the systems including identification and ecosystem. Without the implementation of measures to retention and capture of ensure the maintenance of these resources, significant groundcover and tussock grass decreases in productivity of patches. the soil and pasture occur. • Groundcover maintained well above Changes in condition and 40% to minimise soil loss and trends in condition of water runoff. quality can indicate the • Monitoring framework to assess leakiness of the land changes in water quality including systems. Through various changes in sediment load, pH, measurements of the nitrogen and phosphorous. trends in water quality it can be determined and monitored what resources are being lost in excess from the land systems.
24. Appropriate fire Frequency and intensity of Assessment: management regimes fire partly shapes the • Maps and tables detailing the are maintained. structure of savanna frequency and intensity of fires vegetation and thus fire can across the region be used as a management • Review and assessment of the tool to improve pasture and effects of fire intensity, frequency soil productivity and to and seasonality on soil, and pasture manage some weed and woody weed species in varying populations. However, it is conditions essential to understand the Actions: effects of fire on these • Management strategies to enhance resource attributes to the effectiveness of fire as a understand how fire can be management tool for weed used to most efficiently management, and soil and pasture manage them. maintenance • Regionally-specific fire education programs which aim to link research knowledge with fire management behaviour in the savannas • Direct monitoring of fire regimes at a property and regional scale to ensure proposed improvements in timing and intensity of burns are achieved; Monitoring of ecological values (e.g., vegetation composition and structure) which are impacted on by fire regimes to ensure proposed management actions are effective
Further Information and contacts
This guide has been developed as part of a collaborative project including regional community and government planning organisations. The authors welcome any comments or feedback on this guide and the framework itself.
Geoff McDonald CSIRO Sustainable Ph: 3214 Geoff.McDonald@CSIR Project Leader Ecosystems. 2290 O.au
Clive McAlpine Department of Ph: 3365 [email protected] Geographical Sciences 6620 and Planning, University of Queensland
Bruce Taylor CSIRO Sustainable Ph: 3214 [email protected] Ecosystems. 2638
Adele Vagg School of Natural and Rural Systems Ph: 5460 1690 [email protected] Management, University of Queensland Gatton