Review of the Great Barrier Reef Marine Park Act 1975 Review Panel Report 3806 DESIGN DIRECTION DESIGN 3806 1

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f e e R r e i r r a B _ 6 0 8 3 3806_BarrierReef Cover.indd 1 Review of the Great Barrier Reef Marine Park Act 1975 Cover Photo Credits

Snorkellers with Low Isles in background, Port Douglas, Far North Queensland. Image: A. Elliott

Fishing at Pelorus Island, Lucinda in background, Far North Queensland Image: J. Jones

Coastal trader River Embley, en route to Gladstone through the Great Barrier Reef Image: photographer unknown

Slashers Reef, Great Barrier Reef Image: J Jones

Coral Cod on Stevens Reef, Great Barrier Reef Image: Ben Cropp

Oblique view of North West Island reef, looking across top of reef towards the island, Capricorn Bunker Group, Rockhampton, Queensland Image: photographer unknown

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Review of the Great Barrier Reef Marine Park Act 1975 Review Panel Report

33806806 GBRGBR internalsinternals final.inddfinal.indd i 112/9/062/9/06 10:39:4110:39:41 AMAM Review of the Great Barrier Reef Marine Park Act 1975 Review Panel Report © Commonwealth of Australia 2006 ISBN 0 642 55305 X This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior written permission from the Commonwealth, available from the Australian Government Department of the Environment and Heritage.

Department of the Environment and Heritage GPO Box 787 Canberra ACT 2601 This report is available at www.deh.gov.au

33806806 GBRGBR internalsinternals final.inddfinal.indd iiii 112/9/062/9/06 10:39:4210:39:42 AMAM Foreword

The Great Barrier Reef is the world’s largest coral reef, covering some 344 400 square kilometres of unparalleled biodiversity and unique ecosystems. Recognised internationally as a World Heritage Area, the Great Barrier Reef is an icon for all Australians. The Great Barrier Reef Marine Park Act 1975 established the Great Barrier Reef Marine Park some 30 years ago, and has been during this time an exemplar for marine management and conservation. An important part of this has been – and continues to be – a collaboration with the Queensland Government in managing and protecting the Marine Park. In commissioning a review of the Act, the Australian Government has recognised the evolving needs and challenges of safeguarding the Marine Park for the future. Meeting these requires up-to-date, relevant legislation and an approach that provides for continued protection for marine life and biodiversity, as well as for ongoing sustainable economic and recreational activity and engagement with business and local communities. I am pleased to present the report of the Review Panel, which sets out a clear direction for the future management of the Great Barrier Reef Marine Park. The Australian Government is committed to the long-term protection and wise use of this precious asset, and commends this report.

Senator the Hon. Ian Campbell Minister for the Environment and Heritage

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33806806 GBRGBR internalsinternals final.inddfinal.indd iviv 112/9/062/9/06 10:39:4210:39:42 AMAM Senator The Hon Ian Campbell Minister for the Environment and Heritage Parliament House CANBERRA ACT 2600

Dear Minister In accordance with the terms of reference, we are pleased to present to you the report of the Review of the Great Barrier Reef Marine Park Act 1975. In conducting the Review, we have considered carefully the 227 substantive submissions to the Review made from a wide range of interested parties. We have also held a total of 36 consultation meetings with relevant industry, community, government and conservation organisations. We are confi dent that our recommendations provide a framework for ensuring the eff ective protection and management of the Great Barrier Reef into the future.

Yours sincerely,

David Borthwick Barbara Belcher Jonathan Hutson Chair of the Review Panel First Assistant Secretary General Manager Secretary Department of the Department of Finance Department of the Prime Minister and Cabinet and Administration Environment and Heritage 28 April 2006 28 April 2006 28 April 2006

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33806806 GBRGBR internalsinternals final.inddfinal.indd vivi 112/9/062/9/06 10:39:4310:39:43 AMAM Contents

Foreword iii

Letter of transmittal v

Glossary of commonly used terms and acronyms xiii

PART 1 1

1 Introduction 3 1.1 Background to the Review 4 1.2 Terms of Reference 5 1.3 The Review process 5 1.4 Structure of this report 6

2 Executive summary 7

3 The environmental, social, economic and cultural values of the Great Barrier Reef 13 3.1 Environmental values 14 3.2 Economic, social and cultural values 20

4 Overview of the Great Barrier Reef Marine Park and the Authority 27 4.1 Establishment and development of the Great Barrier Reef Marine Park 28 4.2 Functions, governance, and accountability 30 4.3 The Authority’s budget 36 4.4 The structure of the Authority 37

5 Operating environment 43 5.1 Overview of the operating environment 44 5.2 Policy environment 44 5.3 Regulatory framework 47

6 The Representative Areas Programme 55 6.1 Introduction 56 6.2 Submissions to the Review about the Representative Areas Programme 56 6.3 Science and policy underpinning the Representative Areas Programme 59 6.4 Development and implementation of the Representative Areas Programme 62 6.5 Public consultation on the rezoning process 65 6.6 Synopsis of the Representative Areas Programme process and key issues 67 6.7 How user activities were addressed in the Great Barrier Reef Marine Park Zoning Plan 2003 68 6.8 Case study of zoning plan development in the Capricorn Bunker Region of the Great Barrier Reef 78

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33806806 GBRGBR internalsinternals final.inddfinal.indd viivii 112/9/062/9/06 10:39:4310:39:43 AMAM 7 Pressures on the Marine Park 91 7.1 Water quality 93 7.2 Climate change 95 7.3 Coastal development 97 7.4 Tourism 98 7.5 Fishing 100 7.6 Shipping 103 7.7 Summary 104

PART 2 105

8 Challenges, priorities and framework for the future 107 8.1 Achievements of the fi rst 30 years 108 8.2 Challenges for the future 109 8.3 Stakeholder views 110 8.4 Future considerations 110 8.5 A framework for the future 111

9 Roles and responsibilities 113 9.1 The role of the Authority 114 9.2 The roles of the Minister and the Department 116 9.3 The role of Queensland 118

10 Engaging users and communities 125 10.1 The importance of engagement 126 10.2 Current engagement mechanisms 126 10.3 Enhancing engagement 127

11 Research, reporting and socio-economic information 133 11.1 Current approach 134 11.2 Future research, monitoring and reporting 137 11.3 Socio-economic information and analysis 139

12 The management framework 145 12.1 The legal nature of the Authority 146 12.2 Corporate structure of the Authority 148 12.3 Financial management and accountability 153

13 The regulatory framework 155 13.1 The objectives of regulation 157 13.2 Creating the Marine Park 158 13.3 Zoning plans 158 13.4 Permitting and environmental impact assessment 159 13.5 Protected species 161 13.6 Enforcement and compliance 162

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33806806 GBRGBR internalsinternals final.inddfinal.indd viiiviii 112/9/062/9/06 10:39:4310:39:43 AMAM 14 Findings and recommendations 163 14.1 Overall fi ndings of the Review 164 14.2 Recommendations 167

REFERENCES 177

APPENDICES 183 A Terms of Reference for the Review 184 B The Review secretariat 185 C Public submissions to the Review 186 D Consultation meetings held as part of the Review 191 E The Emerald Agreement of 1979 193 F Legislation, Regulations and conventions relevant to management of the Great Barrier Reef 194 G Government agencies of relevance to management of the Marine Park 195 H Biophysical Operational Principles for the Representative Areas Programme 196 I Selected scientifi c studies on the establishment of ‘no-take’ areas in Marine Protected Areas available at the time of the Representative Areas Programme 201 J Economic, social, cultural and management feasibility operational principles for the Representative Areas Programme 203

MAPS

Map 1 The Great Barrier Reef Marine Park and World Heritage Area 15 Map 2 Australia’s marine parks 16 Map 3 Non-reef bioregions in the Great Barrier Reef Marine Park 18 Map 4 Reef bioregions in the Great Barrier Reef Marine Park 19 Map 5 Defence areas within the Great Barrier Reef Marine Park 23 Map 6 Shipwrecks in the Great Barrier Reef Marine Park 24 Map 7 Native Title claims and Indigenous groups in the Great Barrier Reef and adjacent land areas 26 Map 8 Great Barrier Reef regulatory and management environment 48 Map 9 Great Barrier Reef Marine Park zoning prior to 1 July 2004 69 Map 10 Great Barrier Reef Marine Park Draft Zoning Plan June 2003 70 Map 11 Zoning introduced in July 2004 by the Great Barrier Reef Marine Park Zoning Plan 2003 71 Map 12 East Coast Otter Trawl Fishery Gross Value of Production and the 2003 Zoning Plan 72 Map 13 East Coast Otter Trawl Fishery Vessel Monitoring System data and the 2003 Zoning Plan 73 Map 14 East Coast Line Fishery Gross Value of Production and the 2003 Zoning Plan 74 Map 15 East Coast Net Fishery Gross Value of Production and the 2003 Zoning Plan 75

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33806806 GBRGBR internalsinternals final.inddfinal.indd ixix 112/9/062/9/06 10:39:4310:39:43 AMAM Map 16 Ship reporting information and Designated Shipping Areas in the 2003 Zoning Plan 76 Map 17 Recreational fi shing diary data and the 2003 Zoning Plan 77 Map 18 Capricorn Bunker Region – bioregions on broad scale 80 Map 19 Case study area – reef and non-reef bioregions 81 Map 20 Case study area – East Coast Commercial Otter Trawl Fishery Average Gross Value of Production (GVP) 2001–2002 82 Map 21 Case study area – Line Fishery Gross Value of Production data 83 Map 22 Case study area – Spanner Crab Fishery Gross Value of Production data 84 Map 23 Areas of importance to stakeholders raised in the fi rst round of public consultation 85 Map 24 Case study area – Draft Zoning Plan 86 Map 25 Areas of importance to stakeholders raised in the second round of public consultation 87 Map 26 Case study area showing fi nal zoning changes to address key stakeholder issues 88 Map 27 Case study area – fi nal 2003 Zoning Plan 90 Map 28 Tourism development and usage in the Whitsunday area 99

TABLES

Table 1 Main ecological communities/habitat types in the Great Barrier Reef Marine Park 17 Table 2 Signifi cant features of the Great Barrier Reef World Heritage Area 17 Table 3 Establishment of the Marine Park 29 Table 4 Marine Park zones before and after implementation of the Great Barrier Reef Marine Park Zoning Plan 2003 29 Table 5 Great Barrier Reef Marine Park Authority planning and reporting framework 35 Table 6 Representative Areas Programme milestones 63 Table 7 Overview of public communications and consultation 66 Table 8 Summary of maps 68 Table 9 Case study maps 79 Table 10 Population change in coastal regions adjacent to the Great Barrier Reef 98 Table 11 Annual catch in tonnes of principal species harvested by otter trawl in the Queensland East Coast Trawl Fishery (includes areas outside the Marine Park), 1996–2004 102 Table 12 Great Barrier Reef Marine Park Authority key research partners 135 Table 13 Key research that has informed Marine Park management 136 Table 14 The research needs of the Great Barrier Reef Marine Park Authority 137

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Figure 1 Current governance and accountability framework 31 Figure 2 Great Barrier Reef Marine Park Authority expenditure by administrative section (Budget 2005–06) 36 Figure 3 Great Barrier Reef Marine Park Authority organisational structure 37 Figure 4 Great Barrier Reef jurisdictional boundaries and regulatory responsibilities 49 Figure 5 Great Barrier Reef Marine Park zoning before implementation of the Great Barrier Reef Marine Park Zoning Plan 2003 57 Figure 6 Great Barrier Reef Marine Park zoning after implementation of the Great Barrier Reef Marine Park Zoning Plan 2003 57 Figure 7 Great Barrier Reef Marine Park zoning – guide to activities permitted or prohibited within zones 58 Figure 8 Increase in Queensland land area used for sugar cultivation, 1930–1996 93 Figure 9 Increase in phosphorus and nitrogen use in the Great Barrier Reef catchment, 1910–1990 94 Figure 10 Annual thermal stress indices averaged from 11 sites in the Pacifi c Ocean, 1871–2006 96 Figure 11 Projected bleaching events Great Barrier Reef 97 Figure 12 East Coast Trawl Fishery – annual number of otter trawl days fi shed and number of reporting licences (includes Moreton Bay), 1988–2004 101 Figure 13 Proposed framework for the future 112

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33806806 GBRGBR internalsinternals final.inddfinal.indd xiixii 112/9/062/9/06 10:39:4310:39:43 AMAM Glossary of commonly used terms and acronyms

Authority – refers to the Great Barrier Reef Marine Park Authority Bioregion – an area which shares similar environmental, physical and climatic conditions and contains characteristic ecosystems of plants and animals. The protection of representative areas of each of the 70 bioregions in the Great Barrier Reef is a key objective of the Great Barrier Reef Marine Park Zoning Plan 2003 CRC Reef – the Cooperative Research Centre for the Great Barrier Reef World Heritage Area. CRC Reef was established in 1994–95 as a knowledge-based partnership of coral reef ecosystem managers, researchers and industry. Its mission has been to plan, fund and manage science for the sustainable use of the Great Barrier Reef World Heritage Area. CRC Reef will cease in 2006 and will be largely superseded by the Marine and Tropical Sciences Research Facility CSIRO – the Commonwealth Scientifi c and Industrial Research Organisation Department – refers to the Australian Government Department of the Environment and Heritage Ecosystem-based management – an approach to environmental and resource management that seeks to manage ecosystems and their component parts on an integrated and holistic basis, rather than considering single issues in isolation from their environment and other inter-related issues. The key objective of ecosystem-based management is the maintenance of ecosystem processes and biodiversity EEZ – Exclusive Economic Zone Emerald Agreement – a 1979 agreement between the Australian and Queensland governments that provides the current framework for intergovernmental cooperation in the protection and management of the Great Barrier Reef (see Appendix E) EPBC Act – Environment Protection and Biodiversity Conservation Act 1999 (Cwlth) EMC – Environmental Management Charge Executive management – an approach to governance, outlined in Uhrig (2003), under which governance of a statutory authority is primarily the responsibility of the government GBRMPA – Great Barrier Reef Marine Park Authority Governing board– an approach to governance, outlined in Uhrig (2003), under which governance of a statutory authority is primarily the responsibility of a board of directors accountable to the government Great Barrier Reef – used in a non-technical sense to refer in general terms to the area of the Great Barrier Reef Great Barrier Reef Region – the areas in relation to which the Great Barrier Reef Marine Park may be established. This area is defi ned in theGreat Barrier Reef Marine Park Act 1975. Around 98 per cent of the Great Barrier Reef Region has been declared to be a part of the Marine Park Great Barrier Reef World Heritage Area – the area constituting the Great Barrier Reef World Heritage Area, as inscribed on the World Heritage List. This area has the same outer boundaries as the ‘Great Barrier Reef Region’, but also includes Queensland islands and areas considered to be ‘internal waters’ of Queensland within this Region. Around 98 per cent of the World Heritage Area has been proclaimed as part of the Marine Park. An additional 1 per cent has been proclaimed by Queensland to be national parks (island areas) and a marine park (areas considered to be ‘internal waters’ of Queensland)

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33806806 GBRGBR internalsinternals final.inddfinal.indd xiiixiii 112/9/062/9/06 10:39:4310:39:43 AMAM Green Zone – refers to Marine National Park Zones, as established by the Great Barrier Reef Marine Park Zoning Plan 2003. Green Zones are closed to extractive uses such as fi shing Gross Value Added (GVA) – a measure of the economic value of the net output produced by an industry. Generally, this equates to the profi t of the industry Gross Value of Production (GVP) – a measure of the economic value of the gross output of an industry. Unlike GVA, GVP does not deduct the costs of producing the output, thereby providing an indication of the value added by upstream industries IUCN – World Conservation Union (formerly International Union for the Conservation of Nature and Natural Resources) LMAC – Local Marine Advisory Committee The marine and national parks – refers collectively to the Great Barrier Reef Marine Park, the Queensland Great Barrier Reef Coast Marine Park and Queensland national parks established in relation to islands in the Great Barrier Reef Marine Park – refers to the Great Barrier Reef Marine Park established under the Great Barrier Reef Marine Park Act 1975 (Cwlth) and not used to refer to the Queensland marine or national parks Marine Protected Area – refers generically to protected areas of various forms (e.g. national parks, reserves) established in relation to marine areas for the purpose of the protection and maintenance of biological diversity and of natural and associated cultural resources. The term is not used in this report to refer to areas closed to extractive uses (i.e. ‘no-take’ areas), as is sometimes the case Ministerial Council – the Great Barrier Reef Ministerial Council, established pursuant to the Emerald Agreement of 1979 Multiple use – a management objective applied to some protected areas (including the Great Barrier Reef Marine Park), whereby social, economic and cultural uses of the area are permitted and managed subject to overarching environmental protection and conservation objectives Portfolio – the Environment and Heritage portfolio. Encompasses the Department of the Environment and Heritage and executive agencies and statutory authorities (including the Great Barrier Reef Marine Park Authority) for which the Minister for the Environment and Heritage is responsible Precautionary principle – the principle that lack of full scientifi c certainty should not be used as a reason for postponing a measure to prevent degradation of the environment where there are threats of serious or irreversible environmental harm. The precautionary principle is a component part of the concept of ecologically sustainable development RAC – Reef Advisory Committee RAP – Representative Areas Programme Statutory authority – a public sector entity established by legislation UNESCO – United Nations Educational, Scientifi c and Cultural Organisation WWF – World Wildlife Fund 2003 Zoning Plan – refers to the Great Barrier Reef Marine Park Zoning Plan 2003

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33806806 GBRGBR internalsinternals final.inddfinal.indd 2 112/9/062/9/06 10:39:4410:39:44 AMAM 1. Introduction

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6 0 / 9 / 2 112/9/06 10:39:44 AM Great Barrier Great The Minister for the the MinisterThe for 1 impacting on their , media release, Parliament House, Canberra, House, Parliament , media release, Great Barrier Reef Marine Park Zoning Zoning Park Barrier Reef Marine Great and the Great Barrier and the Great Reef Marine Review of Corporate Governance Governance Review of Corporate Commonwealth Authorities and Commonwealth . There is a need to ensure that the ensure is a need to There . , 2004, Canberra. and Authority were established there have been have established there and Authority were Review of the Great Barrier Reef Marine Park Act Review Barrier Reef Marine Park of the Great (Uhrig 2003), established templates and principles for the and principles (Uhrig for established templates 2003), that the Review would not revisit the outcomes of the 2003 Zoning of the 2003 Zoning the outcomes not revisit that the Review would 2 ce holders and its accountability frameworks’. Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great ce Holders ce Financial Management and Accountability Act 1997 Act Management and Accountability Financial operates in a cohesive and integrated manner with this Act. The Review Terms of Terms The Review manner with this Act. and integrated in a cohesive operates and the Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great came into force, representing a major transition point in the management and protection of the a major transition point in the management and protection representing force, came into 23 August 2005. 23 August The Howard Government Election 2004 Policy: Supporting Government NorthThe Howard Queensland 4

governance of statutory statutory authorities currently against which all Commonwealth authorities are governance the Authority’s for Review provide the current for Reference of Terms The being assessed. assessed in the context be framework to of these changes. the regulatory to and governance structures by the Review Panel has also been given Consideration conservation the continued protection, Barrier for the of the Great and sustainable use Reef over required next 30 years. operating environments. In 2003 a report by Mroperating environments. the John Uhrig AC, of Statutory Authorities and Offi Companies Act 1997 Act Companies Reference provide for this to be addressed. be addressed. this to for provide Reference nancial management and fi seen governance Government agencies have Australian In years recent with landmark like legislation the cantly, signifi frameworks evolve Reef Marine Park Act 1975 Act Reef Marine Park Park Authority (the Authority) were established. In the context of the 2004 Federal Election, the Australian In established. Authority the context (the Authority) of the 2004 Federal were Park performance the Barrier‘to improve of the Great the Act review a commitment to Government made its offi Authority, Reef Marine Park Plan but that the Review’s consideration of consultation, accountability consideration of consultation, and regulatory Review’s but that the frameworks would Plan process. examination of the rezoning by an be informed Since the fundamental changes in Australia’s regulatory and governance landscape. Most notably, the Australian the Australian regulatory Most notably, landscape. and governance fundamental changes in Australia’s has changed with the enactment regulation of the environmental to in and approach role Government’s 1999 and Biodiversity Act Conservation Protection Environment 1.1 the Review to Background It since the 30 years is now over 1 Introduction 1 2 and Heritage, the Environment Campbell I, Minister for Environment and Heritage, Senator the Hon. Ian Campbell, formally announced the Review and its Terms Terms announced the Review and its formally the Hon. Ian Campbell, Senator and Heritage, Environment 2005. on 23 August of Reference In 1981 the conservationSince 1975 much has been achieved. Barrier of the Great value Reef was Heritage List. By 33 sections 2001, World had been with inscription on the internationally recognised to be part Park. ned and proclaimed of the Marine In July 2004 the defi 2003 Plan cantly increased and signifi of the Marine the zoning consolidated Park Plan The 2003 Zoning Marine Park. was not without some social and economic The introduction of this Plan of protection. and level the area Inimpacts, with a number of stakeholders announcement raising concerns his August about the process. the Minister stated of the Review, d d n i . l a n i f

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PART 1 1. Introduction 0 8 33806 GBR internals final.indd 4 1.2 Terms of Reference

The Terms of Reference (Appendix A) for the Review that have been addressed by the Review Panel PART 1 are as follows: The Review will focus on: • the role of offi ce holders • the functions of the Authority

• accountability frameworks 1. Introduction • consultation mechanisms. The Review will provide advice, in light of the Uhrig principles, on: • the appropriateness of current arrangements • the effi ciency and eff ectiveness of current consultation mechanisms • any changes to improve the corporate governance arrangements of the Authority • any adjustment of the function of the Authority • improving consistency between the Great Barrier Reef Marine Park Act 1975 and the Environment Protection and Biodiversity Conservation Act 1999 • any legislative amendments required to make such changes.

1.3 The Review process The Minister for the Environment and Heritage, in announcing the Review, also announced the appointment of a Review Panel chaired by Mr David Borthwick, Secretary of the Department of the Environment and Heritage, and assisted by Ms Barbara Belcher, First Assistant Secretary, Department of the Prime Minister and Cabinet and Mr Jonathan Hutson, General Manager, Department of Finance and Administration. The Review Panel was supported by a secretariat staff ed by offi cers of the Department of the Environment and Heritage (Appendix B). Public submissions Public submissions to the Review were invited on 23 August 2005, with a closing date of 30 September 2005, although a small number of submissions received after the closing date were also considered. The invitation for submissions was advertised in national and Queensland State and regional newspapers. To guide submissions, the Terms of Reference and a background3 paper discussing issues covered by the Review were provided on a Review website4 and via post (upon request). All substantive submissions not containing confi dential information were published on the Review website. A total of 227 substantive submissions were received, as well as a number of ‘campaign’ submissions. A list of the persons and organisations that made substantive submissions to the Review is provided in Appendix C.

3 http://www.deh.gov.au/coasts/mpa/gbrmpa/pubs/background-paper.pdf 4 http://www.deh.gov.au/coasts/mpa/gbrmpa/index.html

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6 0 / 9 / 2 112/9/06 10:39:44 AM Great Barrier Reef Marine Barrier Reef Marine Great cials , which implemented the Representative Areas Programme, is then described in Programme, Areas the Representative , which implemented 6

Park Zoning Plan 2003 Plan Zoning Park the into of the Marine the protection Park the basis for provides Plan as the 2003 Zoning some detail, structures in place, and the legal and governance and functions role of the Authority, The future future. of the Marine maintaining the health and resilience framework for comprehensive a provide will need to scale and scope of and relative concludes with a description of the nature 1 therefore Part ecosystem. Park on the Marine Park. pressures Part 2 of the Review and recommendations and sets out the reasoning be addressed 2 distils the issues to Part and Queensland of the Authority It and the Australian and responsibilities discusses the roles Panel. accountability governance structures and the arrangements, consultative mechanisms, governments, recommendations of the Review ndings and summary A consolidated regulatory environment. of the fi 2. at the end of Part is provided Panel 1.4 Structure of this report in twoThis report parts. context be addressed that need to and raises issues 1 provides is presented Part their in developing considerations analysis and the Review Panel’s 2 provides Part in the future. recommendations. 1 Part Barrier the context in of the Great of its Reef Marine 1 explains the establishment and evolution Part Park This includes an overview of the Authority and the economic and cultural values. social, environmental, Issues raised by stakeholders in submissions to in which it operates. and policylegislative environment of the The development in this part. covered the Review and consultations are Consultation and Sydney Brisbane, Townsville, persons in Cairns, and interested met with key groups The Review Panel with: held Canberra. were of 36 meetings A total offi • Government marine services shing, tourism and interests fi and recreational commercial associations representing • Queensland • and senior management of the Authority the board • Marine Chairpersons Advisory of Local and Reef Advisory Committees Committees • organisations and academics researchers • conservation parliamentarians • federal • ports and shipping authorities. a full list of parties met. Appendix D provides with whom the Review Panel d d n i . l a n i f

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PART 1 1. Introduction 0 8 33806 GBR internals final.indd 6 2. Executive summary

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6 0 / 9 / 2 112/9/06 10:39:44 AM with terms of reference that focus on that focus with terms of reference conservation diversity. of biological in situ ce holders and its accountability frameworks. The Terms Terms The ce holders and its accountability frameworks. was ground breaking legislation in providing for ‘reasonable use’ use’ ‘reasonable for breaking in providing legislation was ground Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 5 Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great 8

improving the performance of the Authority, its offi the performanceimproving of the Authority, at Appendix A. of the Review are of Reference and cultural values. economic world’s social, It is the cant environmental, BarrierThe Great Reef has signifi Barrier far the largest is by the Great Reef Marine and within Australia ecosystem, Park coral reef largest extends 2 300 kilometres over The Marine Park Area. Marine or State Protected Commonwealth of any kilometres. It 344 400 square some includes approximately along the Queensland coastline and covers These habitats and 70 distinct 900 islands and cays habitat types, called bioregions. 2 900 individual reefs, sponges, Australia’s 30 per cent of soft corals, biodiversity including 30 per cent of the world’s contain great humpback whales and dugong. species of marine seven turtle for areas and breeding six of the world’s Barrier and international icon. InThe Great Reef is an Australian 1981 its conservation value was Heritage List as: World with its inscription on the internationally recognised • evolutionary history the major stages of the earth’s an outstanding example representing • process and biological an ongoing ecological cant example of a signifi • a superlative natural phenomenon • for cant habitats of important a source and signifi The Great Barrier Reef and the surrounding coastal and catchment areas support Barrier areas coastal and catchment The Great Reef and the surrounding substantial economic Barrier the Great Reef comprises adjacent to 22 per cent of Queensland’s area The catchment activity. industries along the coast. Mining 850 000 people live the largest and tourism and around are land area $7 billion per annum and for minerals is around for of Production Value The Gross areas. in catchment shing being $359 million per annum. fi and recreational commercial tourism $4 billion, with the value for with the majority this economic activity, Strait is vital to Torres BarrierShipping within the Great Reef and $17 billion per annum commodity exports 10 major ports being shipped through of Queensland’s on the Barrier also the Great seem, Reef Marine Unusual as it may Park Barrier the Great Reef. coast adjacent to most important military and facilities. training areas some of Australia’s and abuts overlays Barrier the Great along Owner Reef coast from groups Traditional than 70 more In are addition, there continue and beliefs spiritual lore Their traditional customs, Strait islands. Torres the eastern to Bundaberg and the sea and islands extends all marineThe sense of custodianship to resources, practised be to today. country’. ‘sea part be an integral to known of their traditional country, collectively considered are as their long-term demonstrated and Queensland governments have Since 1975, both the Australian During this time the Barrier the Great Reef. and protect collaboratively work together commitment to oversight in the strategic levels engaged at many Queensland Government has been actively and formally 5 2679–2680 22 May 1975, pp. House of Representatives, Hansard, The 2 Executive summary 2 Executive establish the Marine to In stated of the legislation Government, in its introduction Park, Australian 1975 the and of our unique Barrier Reef is of paramount importance and the world’ ‘protection Australia to that Barrier of the Great of the Authority Reef will be the paramount aim and protection in all ‘conservation of the Marinezones Park’. co-existto with conservation, for The Act provides the concept of a multiple use park. thus establishing and of a marine Barrier and development park in the Great Reef Region’ care control, ‘establishment, the Barrier Authorityestablishes the Great Reef Marine (the Authority). Park the Hon. Ian Campbell, Senator and Heritage, the Environment 2005 the Minister On 23 August for of the announced a review d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d and management of the Marine Park. Underthe and managementoftheMarine around 180staff Committees.Advisory in openeditsheadquarters The Authority Townsville by in1979andissupported a numberofconsultative committees, inparticular, Committees four and11Local ReefAdvisory Marine for andtheMinister theEnvironmentadvise theAuthority andHeritage. hasalsoestablished The Authority Consultative addition,there Committee othermembers.by Queenslandandtwo isastatutory inplaceto In andbodycorporate. authority andamembernominated theChairperson, statutory comprises The Authority The However, greater streamlining andintegration is possible. havearrangements beenputinplaceto andduplicationfromperspective. minimiseoverlap astakeholder are required from theAustralian Government,QueenslandandtheAuthority. Arange ofadministrative and shipping. There are anumberofmatters aff resource management,coastaldevelopment,pollution,climate change, heritage fi shing areas includeenvironment management,natural assessments, park protection andimpact marine ParkMarine andsurrounding area, whichrequire governmentsto thetwo closelytogether. work These andlegislation are that applyto themany inbothpolicy pointsofintersection Equally important national parks. Around Reef 1percentoftheGreat Barrier World Area Heritage and isconstituted asQueenslandmarine as Queensland ‘internal waters’. Park. cover theState Queenslandnationalparks islandswithintheMarine covers areas park andareas lowandhighwaterThe Queenslandcoastalmarine between mark recognised provides for Queenslandmanagementofthefi withinitscoastalwaters, sheries Marine includingthe Park. Constitutional Settlement,theCommonwealth upto lowwater mark. hasjurisdiction This agreement also within bothCommonwealth andQueenslandcoastalwaters and, byagreement undertheOff issues. dueto jurisdictional A collaborative approach Park has alsobeennecessary The Marine lies Park to bedelivered bytheQueenslandParks and Wildlife Service. management. This agreement alsoprovides managementoftheMarine for theoperationalday-to-day in 1979,undertheEmeraldAgreement, Park, research to oversee establishment of theMarine andfi eld one ofthefour membersoftheAuthority. ACommonwealth/State Council wasestablished Ministerial In the30years sincethe In from$4.8 millioncontribution management. theQueenslandGovernmentfor day-to-day Authorities andCompanies Act 1997 In July2004,the In Park. oftheMarine to bepart Park wasproclaimedhadbeendefi in1979andby2001,33component sections nedand declaredformally has beenamajorfocus andgovernmentsover thisperiod. of theAuthority The fi Marine ofthe rstsection shell’—within whichareas canbedeclared park. asmarine ParkThus, theestablishmentofMarine itself anddefi establishedtheAuthority The Act ReefRegion—the oftheGreat nedtheboundaries Barrier ‘outer Queensland governmentsare itthatway to determined bybeingproactive keep andavoiding the with many more underthreat, Reefisinrelatively theGreat Barrier goodshape. The Australian and Whilst globally27percentofcoralreefs have already andcoralbleaching, beenlostto humanimpacts Parkon theMarine for recreational andcommercial activities. Reef,the Great Barrier plannedcoastaldevelopment, unsustainablefi poorly shingormountingdemands accumulation ofpressures ontheecosystem, for example, from thewaters entering poorwater of quality ofclimate changeinparticular.withstand theimpacts This resilience canbeeroded through thegradual Reef inhelpingtheGreatover Barrier Suchresilience thelongerterm. willbeofparamountimportance place alevel ofprotection thatwillplacetheecosystem inastrong positionto maintainitsresilience the Representative Areas Programme and,withassociated State inconjunction processes, hasputin Park andsignifi cantlyincreased thearea andlevel ofprotection. The2003 Zoning Plan implemented

9 Great BarrierReefMarinePark Act 1975 employed underthe Great BarrierReefMarinePark Zoning Plan 2003 Great BarrierReefMarinePark Act 1975 . It hasanoverall budgetof$38millionfor . It 2005–06,whichincludesa Public Service ActPublic 1999 Service established the Great Barrier Reef Marine Park asa ReefMarine establishedtheGreat Authority Barrier ecting the Marine Park theMarine whereecting assessmentsandpermits Great BarrierReefMarinePark Act 1975 . to the issubject The Authority cameinto force muchhasbeenachieved. consolidated the zoning of the Marine consolidated thezoning oftheMarine Review of the the of Review Great MarinePark Reef 1975 Barrier Act theState nominates Commonwealth shore 112/9/06 10:39:45AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:39:45 AM ective ective relationship relationship ective , the establishment of ective collaboration with the ect local and regional many the ective operational and institutional framework for Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great zoning inevitable in view of the substantial change to ected stakeholders were 0 1

engagement across all stakeholderengagement across groups. the Marine Park has been completed and an eff has been completed the Marine Park clearly be underpinned Queensland Government and its agencies is essential and needs to by a more Barrierbe in the health of the Great Reef to trends is a need for there Thirdly, articulated framework. arrangements be planning and zoning to changes in future reportedregularly and consideration of any undertaken and accountable way. transparent in a robust, the enhancements to for They provide summarised below. are recommendations The Review Panel’s the regulatory and streamlining updating framework and ensuringgovernance arrangements, eff management of the Park has been put in place. The current level of protection in place for the Marine Park the Marine in place for Park of protection level The current has been put in place. management of the Park activities, of while maintaining the health achieving a balance of commercial a sound base for provides can be made considers that improvements the Review Panel However, Barrierthe Great Reef in the future. the capacity the goal of the long-term protection of governments and the Authority increase deliver to to importance the it recognises of Firstly, considerations. This view is based on three Barrierof the Great Reef. including developments manner, in an integrated ecosystem on the Marine Park the pressures addressing of eff the maintenance Secondly, along the coast and in the catchments. mistakes that have severely degraded many other coral systems around the world. This aspiration This aspiration the world. around other coral systems many degraded severely mistakes have that and deciding between Nevertheless, managing the Review. to in submissions shared was universally In meeting in the future. challenging is likely become much more uses of the Marine to alternative Park of of protection level assess the overall and transparently cally scientifi will be a need to this challenge there and the likely ecosystem social and economic impacts changes being considered. the Marine of any Park with stakeholders engaging and clearly decision making understood for processes will Comprehensive Plan. importance,also be of paramount of the 2003 Zoning by the introduction as illustrated Marine the entire Its Park. covers Plan and implementation was an development The 2003 Zoning undertaking aff to and scope with the potential of considerable scale communities and stakeholders. Indeed, nearly 32 000 submissions were made over the course of the over made communities and stakeholders. Indeed, nearly were 32 000 submissions regard criticism in accolades and severe both Plan drew Zoning nal 2003 fi The of the Plan. development including the tourism stakeholders, industry, many On the one hand, and outcome. the process to that the Representative considered and shipping and maritime interests, safety c community, scientifi a number of other However, outcome. a sound overall handled and produced was well Programme Areas with the disagreed businesses, related shers and fi and commercial stakeholders, mainly recreational with inadequate biased, were and approach that the process c basis and considered scientifi Plan’s Zoning in has resulted Plan consideration of the impacts Indeed, the 2003 Zoning on individuals and communities. particularly intense, been locally quite as its introduction came that have short-term adjustment pressures sheries management changes, fi also being impacted by a number of State at a time when businesses were coastal marineState park changes and external zoning market factors. as this is outside the itself, Plan of the 2003 Zoning the outcomes has not revisited Whilst the Review Panel the lessons applying to with a view has been considered process Plan the Zoning scope of the Review, considers that the Authority undertook and, extensive consultations The Review Panel learnt the future. to sought to Programme, Areas operating principles Representative of the in implementing the overarching it appears that an eff However, uses. between alternative a balanced outcome achieve with recreational and commercial fi shing stakeholders is lacking. To an extent,tensions between such shing stakeholders is lacking. fi and commercial with recreational the Authority and aff engagement for is of the view that the processes Nevertheless, the Review Panel arrangements proposed. to with regard has made recommendations The Review Panel with all stakeholders can be improved. c and socio-economic will which and measures consultation analyses, scientifi transparent the need for accountability the of the Authority. improve activity of intense After 30 years under the d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d the Authority to be subject to to the besubject the Authority governmentbody, thatisanon-commercial entity itisnotappropriate for andadvisory as aregulatory shouldremainThe Authority soasto asabodycorporate provide for However, decisionmaking. collective and Heritage. interests avenue would for provide afurther adviceonspecifiMinister cissues to the for theEnvironment Board membersrepresentingGovernment, asatpresent. comprising AnAdvisory abroad rangeof but appointed for withonememberbeingnominated theirrelevantbytheQueensland expertise, offi of three statutory to government. The ReviewPanel shouldbeconstituted withaminimum considersthattheAuthority management, aswell asproviding adegree ofindependencefrom government,whilebeingaccountable approach allowsforto well afocused, founded. authority specialisedandexpertise-based Astatutory of theAustralian Park Governmentinrelation to ReefMarine managementoftheGreat was Barrier responsible for onbehalf authority conception ofthereadvisingandacting beingadedicated statutory approach. requiring andexpertise-based The ReviewPanel anobjective isoftheviewthatoriginal protectionThe long-term Reefisacomplexandintensive andmanagementof the Great task Barrier fi impacting of managementactivities shing. challenges ofcatchments, coastaldevelopment andislandmanagement,improving thecoordination consideration ofonshore andoff Council would provideReef Ministerial aforum for strategic Park oversight ofMarine managementand updated and consolidated. Undersuchanintegrated intergovernmental agreement, theGreat Barrier The current suite offormal and informal agreements governmentswould between benefi tfrom being therefore to the proposes besubject thattheAuthority for ofthe thepurposes as a ‘prescribed agency’. would thenhave oftheAuthority theroleChairperson ofchiefexecutiveThe perform the role of agency head underthe therole ofagency perform be drawn together andpublishedasthe ‘ Review Panel recommends thatinformation gainedfrom thismonitoring, assessmentandanalysisshould Given thedegree ofinterest about,thelevel in,andconcern ofprotection Reef, oftheGreat Barrier the to thelevel, areaofprotection. ortype considerationofany changes to support and analysingbiophysical, necessary social and economicfactors ofmanagement measures, Parkof theMarine assessingfuture andtheperformance andpressures, risks addressed. To these thingseff undertake basis, thatlonger-term issuesare onfacilitatingmultipleuseandensuring eff Park willneedto managementoftheMarine focusThe Authority on anecosystem ontheday-to-day employed underthatAct. the Act needstothe Act bebrought upto date andbetter aligned withthe sound. However, there are three areas thatneedto beaddressed to meetfuture requirements. Firstly, The of thatresponse isavailable through thefi ve-yearly enough for theecosystem to respond. The Panel thatinformation onthenature alsoconsidersitimportant Zoning Plan remain inplacefor thatprovidesfor andislong aperiod stability businessandthecommunity and biophysical addition,theReviewPanel that the2003 information. In considersthatitisimportant that theyallowfor publicconsultationand thattheybebasedonsubstantive extended socio-economic following approval oftheprocess bytheMinister, beundertaken andoperationalprinciples arrangements and dueprocess. alltheseconcerns, theReviewPanelWhile notsharing proposes thatany future zoning disagreement withthescientifi cunderpinning, andperceptions ofalacktransparency, accountability To inregard raisedbystakeholders alarge theconcerns to extent the2003Zoning Plan process from arise in order to better inform thepublicanddecisionsonmanagement.

1 1 Great BarrierReefMarinePark Act 1975 ceholders andamaximumoffi ve. Theoffi Financial ManagementandAccountability Act 1997 shore issuesaff Commonwealth AuthoritiesandCompanies Act 1997 ectively, more attention needsto begiven to theuse monitoring has served its purpose well itspurpose andthelegislation remains hasserved Great BarrierReefMarinePark Report Outlook Public Service ActPublic 1999 Service ecting the Great Barrier Reef. theGreatecting Barrier Suchissuesincludethe Outlook Reports Outlook Financial ManagementandAccountability Act 1997 ceholders shouldnotberepresentational Review of the the of Review , with the agency comprising staff comprising , withtheagency . Environment Protection and . would also Chairperson The Great MarinePark Reef 1975 Barrier Act ectively andaccountably ectively ’ onafi basis ve-yearly . The ReviewPanel

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6 0 / 9 / 2 112/9/06 10:39:45 AM , and Environment Environment . ectively manage ectively Great Barrier Reef Great are broad and this is a broad are , the establishment of the are less robust than in its than less robust are Environment Protection and Protection Environment Great Barrier Reef Marine Park Act Act Park Barrier Reef Marine Great Environment Protection and Biodiversity Protection Environment , has concluded that it is appropriate , has concluded that it is appropriate ective collaboration between the Australian Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great Environment Protection and Biodiversity Conservation Protection Environment ecting and use of the Marine the protection Park. is that the erence applies uniformly to both Queensland and to applies uniformly Environment Protection and Biodiversity Conservation Protection Environment ecting the Marine responsibility this approach, Under Park. provide the overarching basis for environmental impact environmental basis for the overarching provide Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great has of the Marine the management ective framework for Park Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment and that the Authority is appropriately positioned to eff positioned to and that the Authority is appropriately . Secondly, it is important it is overlaps gaps and issues arising that from . Secondly, Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment does not. Another important diff , including that the objects, including that the of the Act incorporate contemporary concepts such as Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great to be employed. The Authority would continue to performThe Authority to continue would its normal regulatory permitting be employed. to . The enforcement provisions of the provisions The enforcement . refl ects and implements a cooperative approach to management agreed between the Australian and between the agreed to management ects approach and implements a cooperative refl Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment 2 1

Marine Park has been completed and an eff has been completed Marine Park maintaining the sound base for a provides the Park for in place of protection The level been put in place. eff This will require Barrierhealth of the Great Reef in the future. particularlyand Queensland governments, of the issues impacting are as many on the Marine Park the capability address to improve seek to of the Review Panel The recommendations external the Park. to arrangements and updating the consultative between the Australian challenges through these future Queensland governments and adjusting elements of the regulatory framework, the whilst strengthening transparency and accountability of decision making aff the of issues a range Whilst both Acts do have Barrier the Great Reef. to Act relating maintain a separate to in common, the remove This would the activitywhere with the Authority. is within the Marine generally remain would Park, environmental and robust transparent regulatory duplication in a key and allow the comprehensive, area of the impact and requirements assessment processes functions. activity of intense After 30 years under the Commonwealth waters within the Great Barrier but the within the Great Reef Region, waters Commonwealth 1999 Act Conservation Act 1999 Act Conservation under the and approval assessment for and assessment and for approval of activities approval aff and assessment and for 1975 Queensland governments. that the two Acts do not unnecessarily ensure to designed are recommendations The Review Panel It that the is proposed manner. integrated and in a cohesive each other and operate duplicate 1999 and Biodiversity Act Conservation Protection the Marine Park. in considering the interaction between the The Review Panel, highly technical area. Therefore, rather than making specifi c recommendations, the Review Panel considers the Review recommendations, c making rather than specifi Therefore, area. highly technical and detailed and expert that the enforcement requires consideration, and recommends that this area consistency ensure with the to of the Act be reviewed compliance powers 1999 Biodiversity Act Conservation ecologically sustainable development and improved recognition of the Authority’s role in helping Australia in helping Australia role of the Authority’s recognition and improved sustainable development ecologically and compliance, enforcement to In regard Heritage Convention. World under the meet its obligations with the not consistent are provisions the current 1999 Act Marine Park Act 1975 Act Marine Park The Review Panel has provided a number of proposals aimed at modernising the a number of proposals has provided The Review Panel more modern counterpart,more the Biodiversity Conservation Act 1999 Biodiversity Act Conservation in Commonwealth and Queensland legislation are addressed to deliver streamlined and consistent and consistent streamlined deliver to addressed are and Queensland legislation in Commonwealth and the community. business for impact and permit processes assessment, approval environmental in the the compliance provisions Thirdly, d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:39:45 AM , in providing for ‘reasonable use’ to to use’ ‘reasonable for , in providing into Parliament, the Australian Government stated that stated Government the Australian Parliament, into Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great The 6 Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 4 1

6 2679–2680 22 May 1975, pp. House of Representatives, Hansard, 3.1 Environmental values 3.1 Environmental and cultural values. economic In introducing social, cant environmental, BarrierThe Great Reef has signifi the and unique Barrier of our is of paramount importance Reef world’ and the Australia to ‘…protection Barrier of the Great Reef will be the paramount aim of the Authority and protection in all ‘conservation of the Marinezones Park’. 3 social, environmental, The of the and cultural values economic Reef Barrier Great co-exist with conservation, management with an overarching to established a multiple use approach This concept has underpinned of the Marine management conservation Park. objective. the Australia, Within complex ecosystems. and most largest BarrierThe Great Reef is one of the world’s Marine or State Protected Commonwealth Barrier of any (MapGreat Reef Marine 1) is by far the largest Park extends 2 300 kilometres over The Marine coastline and covers along the Queensland Park (Map 2). Area kilometres. 344 400 square approximately It includes some rather than a continuous barrier. Barrier of coral reefs The Great Reef is a broken maze range The reefs islands. mainland or around along the reefs fringing of which 760 are 2 900 individual reefs, reefs at platform fl Their shape varies from than 100 000 hectares. more less than one hectare to from in size 70 of within the boundaries 900 islands and cays Around of the Park. are There ribbon elongated reefs. to belong The remainder owned and consequently a part Commonwealth of the Marinethe islands are Park. Queensland. to d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Map 1: The Great BarrierReefMarinePark and World HeritageArea

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6 0 / 9 / 2 112/9/06 10:39:47 AM Produced by: ERIN, DepartmentEnvironment of the and Heritage,COPYRIGHT Commonwealth of Australian Australia, 2006 Government. Approximate Scale (km) Projection: Equidistant Conic 0 500 1,000 1,500 Commonwealth State/Territory Outer limit ofExclusive Australia's Economic Zone (EEZ) Australia's Marine Parks Caveat: Data areas assumed received from to the be data correct suppliers Australian Government Data Sources: Geoscience Australia (2001).Boundary Australian Information Maritime System (AMBIS)DEH (2004). v1.1 Collaborative Australian Protected Areas Database (CAPAD) 6 1

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G B R i n t e r n a l s f i n a l . i n d d Reef is a critically important globalresource. isalsoiconicto Australians important andinternationally. It Reef isacritically 2).As (Table theworld’scomplex naturalsystems onearth largest coralreef ecosystem, theGreat Barrier Reefandthesurrounding theGreat areas andmost thatmakes Barrier oneoftherichest biodiversity A diverse Reef. rangeofspecieslivehabitatstheGreat isthisextraordinary withinthevarious Barrier It ecosystem 1). (Table ParkMarine andinitiallymadethearea famous,Park onlyaround theycomprise 6percentoftheMarine 70 bioregions There isawiderangeofhabitatsandgreat Reefcomprising ofspeciesintheGreat diversity Barrier Mainecological communities/habitat inthe types Table 1: Bioregions are areas whichshare similarenvironmental, ecosystem physical andclimaticconditionscontaincharacteristic 7 Signifi Table 2:

omnelhilns<1% Commonwealth islands otnna hl/lps~23% Others oceanicwatersDeep Continental shelf/slopes • Over 175speciesofbirds Over • seascapesandlandscapese.g. Spectacular Island, Hinchinbrook the Whitsundays • More than1500speciesoffi sh • Approximately 500speciesofseaweeds • 800speciesofechinoderms, equalto 13%oftheworld’s total species • 5000speciesofmolluscs Over • 1500speciesofspongesequalling30%Australia’s insponges diversity • ofalltheworld’s one-third Over coralandseapenspecies(80 species) soft • 2900coralreefs Over builtfrom over 360speciesofhard coral • Abreeding area for humpbackwhalesandotherwhalespecies • 43000squareofseagrass meadows Over kilometres • Oneoftheworld’s dugongpopulations(around 1400) mostimportant • Thelargest breeding green area intheworld turtle • Sixoftheworld’s seventurtle speciesofmarine • Percentage oftheMarinePark Sandy ormuddyseabedcommunities Inter-reefal areas Coral reefs Ecological community/habitat type

1 7 (e.g. shallow inshore/coastal areas, algalandsponge‘gardens’, deepshoals) Great BarrierReefMarinePark 7 (Maps 3 and 4). In fact, whilecoralreefs fact, habitatsinthe andislandsare 3and4).In themostwell (Maps known cant features oftheGreat BarrierReef World HeritageArea (some of which support extensive seagrass(some ofwhichsupport beds) Review of the the of Review ~ 8% Great MarinePark Reef 1975 Barrier Act ~ 19% ~ 30% ~13% <6% s ofplantsandanimals. 112/9/06 10:39:49AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:39:50 AM (as identifi ed for the purposes of the Representative Areas Programme) Areas for the purposes the Representative of ed (as identifi 8 1

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G B R i n t e r n a l s f i n a l . i n d d (asidentifi ed oftheRepresentativefor thepurposes Areas Programme) Map 4: Reef bioregions intheGreat BarrierReefMarinePark

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6 0 / 9 / 2 112/9/06 10:39:52 AM future future ansmission to ansmission to otection, conservationtr and was an early example of applying the park concept to oceans. was an early example of applying the park oceans. concept to on a permanent organised of collectiveective protection, system

8 ective port such industries. is essential to system Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 0 2 cient and cost-eff

generations of the cultural and natural heritagegenerations of the cultural [and undertakes the to this end, it can to do all to]… utmost of its resources…’. 3.2 values social and cultural Economic, support Barrier areas coastal and catchment The Great Reef and the surrounding substantial economic Barrier the Great Reef comprises adjacent to 22 per cent of Queensland’s area The catchment activity. supports 80 per cent of land in this area and 20 per cent of its population. Around agricultural land area each with a population Barrier the Great Reef, adjacent to 21 local government areas are There production. Rockhampton Mackay, and Gladstone. Townsville, Cairns, are The major urban centres 25 000. of around Each is a keyThe population along the Great port and has a population of between 26 000 and 140 000. one million by 2026. to 850 000 and expected grow Barrier to around Reef coast is currently cant economic activity Barrier coastal and catchment in the Great surrounding Reef and the is signifi There Some of these activities such as tourism and occur solely or partlyareas. itself, within the Marine Park these businesses land-based activitiesto many two in particular links strong also have However, shing. fi overall industries Australia’s Many that contribute to processing. such as equipment suppliers and seafood the Marine or passage through, An Park. on access to, rely such as coal and sugar, economic prosperity, effi basis and in accordance with modern scientifi c methods. As a party to the Convention, Australia As a party c methods. Convention, to the with modern scientifi basis and in accordance cation, pr the identifi of ensuring ‘duty its recognises In 1981, the Great Barrier Reef was inscribed on the World Heritage List under the Convention Heritage Convention List under the World In Barrier1981, the Great Reef was inscribed on the World and Natural Heritage 1972. In Cultural the adopting World of the Concerning the Protection and the parties threatened increasingly Heritage that cultural and natural heritage Convention, noted are establish an eff it essential to considered 8 and Natural Heritage 1972, Article Cultural World 4 of the Concerning the Protection Convention To be included on the World Heritage List, an area must meet at least one universal value selection must meet at least one universal Heritage List, an area World on the be included To as Barrier The Great Reef is recognised cultural. natural and six four ten, are criterion, of which there natural values criteria as: meeting all four • evolutionary history the major stages of the earth’s an outstanding example representing • process and biological an ongoing ecological cant example of a signifi • a superlative natural phenomenon • for in situ conservation cant habitats diversity. of biological of important a source and signifi obligation Government’s Australian The Heritage Area. World largest BarrierThe Great Reef is the world’s use of for provides Heritage Area World and conserve protect to the Heritage Convention World under the the natural and cultural values. unless it threatens the area The of protection the level increase Over has been international momentum to last two the decades there ConservationWorld This began with the 5). (see also Chapter of the coast and marine environment in Congresses Parks World Rica (Costa 1988) and has continued with the Union (IUCN) General Assembly in Summit on Sustainable Development (Johannesburg reefs, World 2002). Coral 1992 and 2003 and the good condition, Barrier although the Great Reef is in relatively be at risk to and, considered are particular, human impacts been lost due to and coral bleaching already have globally some 27 per cent of coral reefs (World Reef threatened Monitoring(Global Coral Network 58 per cent are 2000) and around Resources 1998). Institute et al. d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Gross Value ofProduction terms, Park isderivedfrom withintheMarine (PDPAustralia 2003). Barrier Reefcatchment 2004there area. wereBarrier In over 1.9millionvisitsto Reef. theGreat Barrier to increase to $6.5billionby2020.Around visitors 19percentofinternational to Australia visittheGreat with some9.3millionvisitors to theregion in2003(Bureau of Tourism Research 2003). This isprojected As noted above, to oftourism thetotal theregional contribution economy isestimated to be$4.2billion, Reefand (Great Barrier Torres Group StraitShippingManagement 2003). ships, costs route itwould costaround beclosedto transport $11billionperannuminadditionaltransport Coral hasbeenestimated Sea. About75percentofcargo that,shouldthis shipsfollowRoute. It theInner from the Torres Straitto Gladstone thecoastandinnerreef. between The Outer Route passesthrough the There are mainshipping routes two through Reef. theGreat Barrier Route traverses north-south The Inner tankers, 24percentcontainervessels and22percentgeneralcargo. aroundvessels. comprise Reef, 42percentofshipsusingtheGreat Bulkcarriers Barrier 10percentare oil Reefeachyear,Barrier vessels plussome1500tourism and25000commercial andrecreational fi shing There are approximately 6000shipmovements oflarge vessels exceeding 50metres lengthintheGreat ofGladstone, through Hay Point, theports (98 percent)ofwhichisexported andAbbottPoint. cargo (AAPMA from theregion 2005).Oneofthelargest exports isblackcoal, around 115milliontonnes handledatotal ofninebillionmasstonnes of 2004–05,theseports Park. In coast adjacentto theMarine onthe 12 percentofallQueenslandshippingcargo, beinghandledbythe10majorports themajority Reef and Torres Group StraitShippingManagement 2003). handlesonlyaround ofBrisbane The port exceeded $17billion,representing from Australia 14percentofthetotal (Great valueofexports Barrier inAustralia.2001–02 shippedthroughactivity Queenslandseaports exports The valueofcommodity ReefRegion withintheGreat and Barrier Shipping activity Torres Straitfacilitates substantialeconomic $119 million(Productivity Commission 2003). at $3.2billion(sugarcane$0.8billion),recreational fi shingat$240millionandcommercial shingat fi estimated at$4.2billion. The gross valueofagriculture inthe1999–2000fi nancial year hasbeenestimated at$6billion. coal beingthelargest commodity The gross intheregion valueoftourism in1999hasbeen The gross valueofmineralsproduced inthe2000–01 fi nancial year hasbeenestimated at$7billion,with are andtourism thelargest incatchmentMining areas industries adjacentto Reef. theGreat Barrier value ofonshore andoff the between thedistinction make anddatacollection, methodologies for economicactivity measuring (2003) andbyPDPAustralia (2003). The nature andbusinessesintheregion, oftheindustries aswell asthe intheregion hasbeenreviewedThe economicactivity insomedepthbytheProductivity Commission 9 Great Barrier Reef Marine Park fi ReefMarine Great Authority Barrier gures basedonEnvironmental fromManagement Charge data,taken http://www.gbrmpa 9 10 Queensland Government Department of Primary Industries andFisheries Industries fi ofPrimary QueenslandGovernment Department guresfrom taken http://www2.dpi.qld.gov.au/fi10 shweb/ by thecommercial inQueensland. sector 26 000tonnes ofseafood valued at around $218millioninGross Value ofProduction washarvested terms FinInshore Fish Fishery, Fisheries. theSpannerCrabFisheryandEastCoast Dive-Based 2004,around In fiOtter are sheries theEast Coast Trawl Fishery, theEast Coast Reef Line Coral Fishery, theEast Coast there are 17commercial fi operatingsolelyorpredominantlyMarine sheries inthe Park. Themaincommercial Reef.long-standing useoftheGreat Barrier commercial Major fi shingbeganinthemid-1950s. Currently, Commercial andrecreational fi andspearfi shing, includingcharter shing, are anothermajorand approximately 40000jobsintheregion. There are 840 commercial Park. operators tourism intheMarine largest employer inthecoastalandcatchment areas ofallindustries Reef, oftheGreat Barrier providing accommodation, isestimated at$589millionperannum(PDPAustralia 2003). isthe industry The tourism from interstate (Access Economics2005). Total Park expenditure onMarine includingland-based tourism, 75 percentofovernightvisitors to Reefare theGreat domesticwith abouthalfofthesecoming Barrier

2 1 accessed on30March 2006. accessedon30March 2006. site/key_issues/tourism/gbr_visitation, shore activity diffi shore activity cult to disaggregate. 10 Around 70percentofthis, or$130millionperannumin Review of the the of Review Great MarinePark Reef 1975 Barrier Act 9 12540.html, Around .gov.au/corp_ 112/9/06 10:39:52AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:39:53 AM chg/dpi/hs.xsl/28_ . The sites compriseThe sites . For some species, the some species, For 11 of the Inner Barriercult waters of the Great Route Reef. Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment 139_ENA_HTML.htm, accessed on 30 March 2006. 139_ENA_HTML.htm, accessed on 30 March 2 2

cast iron and timber light stations constructed in the 1870s that were important and timber light stations constructed in the 1870s that were aids in the cast iron navigational coastal shipping in the diffi of regular development subject management plans and impact to islands and are on Commonwealth-owned located are The sites under the Act. assessment requirements It is estimated that there are around 198 000 recreational fi shers using the Great Barrier shers using the Great Reef (including fi 198 000 recreational around It are that there is estimated Barrier the Great Reef) adjacent to areas catchment Survey and Indigenous (National Recreational Fishing tonnes. 8 500 to be around estimated shers is of these fi The annual catch 2003). 11 taken http://www.dpi.qld.gov.au/cps/rde/x gures from Department Queensland Government of Primary fi Industries and Fisheries recreational catch is larger than the commercial catch (for example, coral trout). In addition to fi shing in the shing In fi coral trout). addition to example, (for catch than the commercial is larger catch recreational beaches fibays, estuaries, occurs in shing rivers, cant proportionrecreational of a signifi itself, Marine Park not partand inlets that are of the Marine and international tourists participate interstate Some 45 000 Park. fi shing charter vessels operating around 120 are There fi shing. charter through many shing, fi in recreational in the that operate shers of charter and game fi of Production Value The annual Gross in the Marine Park. at $50 million (PDP 2003). is estimated Marine Park fi shing to relation spent betweenmillion and $201 million in $80 to have estimated shers are fi Recreational on Henryactivities 2003). Expenditure 2003, Blamey & Hundloe 2005a and 2005b, in 2003 (Hunt & Lysle Parkthe Queensland by Department has been estimated Primary shing in the Marine of boat fi recreational value of the The Economics 2005). 2004 (Access for $100 million around be to Industries and Fisheries Barrier to be $240 million per annum with the Great shing sector Reef is estimated associated fi recreational 2003). Commission Added basis (Productivity Value on a Gross Barrier overlays abuts and the Great Reef Marine Heritage Area, Park World and a Marine Uniquely for Park most important military facilities (Map and 5). Military training areas in or adjacent sites some of Australia’s bases in Bay, Shoalwater and Beach, Halifax Bay at Cowley areas include training the Marineto Park is an air there Additionally, Townsville. Mount Stuart and Tully, at and Cairns and training areas Townsville aerial part combat training that overlays range for and extends the Coral weapons of the Marine into Park one of be to Sea. Since 1965, military is considered which area, Bay Shoalwater in the training has occurred owned and military are A number of the islands in the Marinethe premier in the world. Park training areas training purposes. for managed by Defence 30 of which in the Marine 470 shipwrecks approximately Park, around are there cultural values, to In regard ruins and other sites operating lighthouses, Various islands have ed as historic (Map 6). been identifi have Heritage Commonwealth on the listed are such sites Two cance. of cultural and historical signifi that are List established under the d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Map 5:Defence areas withintheGreat BarrierReefMarinePark

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G B R i n t e r n a l s f i n a l . i n d d commercial communaluse. ofaNativethe right Title holderto hunt,fi shorgather ofpersonal,for thepurpose domesticornon- peoples’Indigenous andinterests rights inlandandseaareas. recognises,The Act amongstotherthings, of theirlandsbefore European settlement. The Native Title istherecognition inAustralian peoplehadasystem oflaw law andownership thatIndigenous forarrangements resources thatare bothculturallyandecologically signifi cant. provides andfosters for aframework partnership andrecording monitoring turtles ofmarine thetake any andto dugong. nottake agreed turtles ofmarine Owners to limittheirtake The Agreement also Resources Agreement, Region. intheHinchinbrook UndertheAgreement, theGirringun Traditional andtheQueenslandParksAuthority and accreditedWildlife thefi Service rst Marine Traditional Useof there isarecognised needto ensure thatany 2005,the huntingisatsustainablelevels. December In anddugongsby oftheirculture, turtles Hunting ofmarine but part Traditional isanimportant Owners as considered oftraditionalcountry, known to beanintegral part ‘sea country’. kinship. resources, toThe senseofcustodianship allmarine extends andtheseaislandsare collectively to culturallifestyle andisconnected thetraditionalresponsibilitiesof Indigenous oflandmanagementand butalsofornutrition ceremonial occasions, exchange, tradeandbarter. Fishing isanessentialcomponent infi peopleparticipate A highnumberofIndigenous shing. for Fishing isnotonlyimportant food and islands includefi shtraps, sites middens, and rock art. story rock quarries, There are many sites ofAboriginal or Torres StraitIslanderorigin. Notablesites onoradjacentto various and Torres values. placesandarangeofotherculturalhistorical Straitincludephysical places, story today.to bepractised Their valuesandinterests for islands, reefs andwaters Reef withinthe Great Barrier Bundaberg to theeastern Torres StraitIslands. Their traditionalcustoms, lore spiritual andbeliefs continue Reef anditsnaturalresources. There are more than70 Traditional groups Owner alongthecoastfrom Aboriginal and Torres StraitIslanderpeoplehave alongandcontinuingrelationship withtheGreat Barrier

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Map 7: Native Title claims and Indigenous groups in the Great Barrier Reef Barrier in the Great Indigenous claims and groups Title Native Map 7: d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:39:57 AM . was enacted. This Act was enacted. permits oil exploration was established shore on human impacts Concerns centred ected reefs. . In 1969, a company was granted a permit covering the . In granted was 1969, a company oil tanker Kingdom, the United accident in the 1970 grounding oil tanker and the 1979 fi re on the IXTOC oil rig in the Gulf of re on the IXTOC oil tanker fi and the 1979 Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Torrey Canyon Torrey Oceanic Grandeur Petroleum and Submerged Lands Act 1967 Lands Act and Submerged Petroleum 8 2

established the Great Barrier Authority advise and act established the Great Reef Marine to on behalf of the Australian Park of a marine park and development in the Great care the establishment, control, to Government in relation and empowers Barrier‘Great Reef Region’ The Act establishes the boundaries of the Barrier Reef Region. be part to Barrier within this region of the Great Reef Marine areas the Governor-General Park proclaim to 30 and 31). (ss. be part to proclaimed of the Marine Park Over progressively the period 2001, sections 1975 to were introduced zoning a single section(Table 3). In into and integrated consolidated 2004, all sections were the through the Marinethroughout Park as a possible cause. These concerns resulted in a number of inquiries and substantial funding of scientifi c a number of inquiries in and substantial funding of scientifi These concerns resulted as a possible cause. research. In 1967 the Queensland Department on Ellison Reef. mine limestone an application to of Mines received off granting for a regulatoryAt about the same time, regime by the 4.1 of the development Establishment and particularly Barrier the Great Reef, to on threats be focused During came to the 1960s and 1970s attention Barrier Reef Marine Park Great mineral exploration and the and risk of a major oil spill. sh, petroleum the crown-of-thornsfrom starfi large-scale of crown outbreaks were 2002) there Woodley Kenchington & 1974 (Lawrence, 1965 to From were of damage Wide areas sh in the CairnsCentral BarrierSections and of the Great Reef. of thorns starfi on aff 95 per cent of coral destroyed with up to apparent, drilling ed as a potential site. was identifi Whitsundays, near the Repulse Bay, Barrierwhole of the Great Reef. and Barrier within the Great exploration of emerging Reef came at a time petroleum This push for a series of oil pollution from oil spills resulting global concern pollution damage from over widespread incidents including the 1967 4 Overview Barrier Reef Great of the Authority and the Marine Park in the Torres Strait of the Torres in the sheries. major fi caused an oil slick that threatened incident, in particular, This latter Mexico. Petroleum Exploratory Drilling into for a Royal Commission such concerns, In to and Production response both Commission, the Royal 1974. Following Barrier 1970 to of the Great Reef was held from in the Area Barrier drilling on the Great Reef. petroleum and Queensland governments prohibited the Australian special statutory authority‘a should be that was A key of the Royal Commission recommendation of research and the control protection ecological for Parliament the appropriate to established responsible was also supportedThis approach by the Report Barrier within the Great Reef province’. and development ‘The considers the Committee of Inquiryof the Committee (1974), which noted: the National Estate into Queensland Government and…the The Australian Heritage standard… World Barrier be of Great Reef to the preservation, of the responsibility for management and presentation an over-riding Government, have These recommendations possibly by setting up a statutory authority the purpose’. reef, or commission for bipartisanreceived support. the In light of these recommendations, d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Commonwealth Park. Marine Park inrelation to areas to thatinthe withinQueenslandwaters withzoning largely complementary November ReefCoast 2004,theQueenslandGovernmentestablishedGreat Marine In Barrier Table 3:Establishment oftheMarinePark cultural use. Table 4setsoutzoning before the2003Zoning andafter Plan. Areas Programme, whichincreased ecosystem protection whileallowingfor commercial, recreational and last stageinestablishinganintegrated Park. Marine The Zoning Plan alsoimplemented theRepresentative anddevelopment ofthe2003ZoningThe consolidationofthemultiplesections Plan canbeviewed asthe Table 4: Marine Park zones before implementation ofthe andafter Table 4:

noe / / . / / n/a n/a n/a Sustainableuseof 1.4 116530 Sustainableuseof through Conservation 33.8 n/a 97250 5160 77.94 28.2 1.5 n/a VI 15.2 islands Commonwealth 0.6 LightBlue Unzoned VI IV General Use Blue Dark Habitat Protection Yellow Park Conservation Scientifi c Research Orange IA 0.01 0.05 155 Science or wilderness 155Scienceor Scienceorwilderness 0.05 710 Ecosystem protection 114530 0.2 33.3 IA0.01 0.1 4.6 IA II Buff Orange Scientifi cResearch Green Pink National Park Marine Preservation oeClu IUCN Colour Zone 2004 – All sections consolidated into2004 –Allsections theAmalgamated ReefSection Great Barrier 2001 –10coastalareas proclaimed 2000 –18coastalareas proclaimed Pass1989 –Cormorant proclaimed Section revoked andanewCairns Section 1998 –Gumoo Woojabuddee proclaimed Section proclaimed. Section Subsumedpreviously Section proclaimed Capricornia 1987 –Mackay/Capricorn proclaimed1984 –Central Section 1983 –Far and Southern Northern, Townsville proclaimed Sections Inshore Pass1981 –Cormorant proclaimed Sections andCairns proclaimed Section covering12000square kilometres 1979 –Capricornia

2 9 e Olive er Great BarrierReef MarinePark Zoning Plan2003 aiu .500 .515n/a 185 0.05 0.05 0.05 various Green category IV 0.1 2.9 9 880 Conservation through Conservation 9880 2.9 0.1 IV Pre-July 2004 (%) Post-July 2004 (%) Review of the the of Review qk IUCNdefi km Sq Great MarinePark Reef 1975 Barrier Act natural resources natural resources management intervention management intervention protection and recreation protection nition

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6 0 / 9 / 2 112/9/06 10:39:57 AM Great Great Great Barrier Great , which was c separation separation c . In 2004–05, the Authority Great Barrier Reef Marine Park Act Act Barrier Reef Marine Park Great . The Chairperson is the Chief Executive The Chairperson is the Chief Executive . Reef Water Quality Protection Plan Quality Protection Reef Water Public Service 1999 Public Act with the Chairperson, together of the Authority, c management system. management c . The staff The . Public Service 1999 Public Act Great Barrier Reef Marine Park (Environment Management Charge) Management Charge) (Environment Park Barrier Reef Marine Great the under employed and the , the Emerald Agreement between the Queensland and Australian governments between the Queensland and Australian , the Emerald Agreement . The EMC is a levy payable by most commercial operators that require a permit undertake to that require operators The EMC is a levy by most commercial payable . (s. 6). It (s. comprises part-time a Chairperson Members and three of the Authority members (s.10). 0 cer of the agency. 3

constitute a statutoryconstitute agency under the jointly released by the Australian and Queensland governments in December 2003. The Plan provides provides The Plan and Queensland governments in December 2003. by the Australian jointly released quality and Queensland government water by multiple Australian action improve to a framework for local governments and industry. agencies, the equivalent of 184 full-time staff employed Offi and a range of Memoranda of Understanding including with individual State agencies. These are These are and a range of Memoranda of Understanding including with individual State agencies. detailed below. 1 and are in Figure presented 4.2 Functions, governance, and accountability 4.2 governance, Functions, The governance and accountability of the frameworks of the Authority the overlay arise from 1975 Act Reef Marine Park Overview of the Authority Barrier AuthorityThe Great Reef Marine is established by the Park 1975 One part-time member must by the Governor-General appointed on the advice of the Minister. are Barrier of Indigenous the Great Reef. communities adjacent to the interests represent to be appointed apply Another part-time by the Queensland Government. No requirements be nominated member may in local their involvement this person is selected for although at present other part-time the to member, community issues. The Authority is supported by staff Key developments in Park management in Park Key developments heritage the under part cant world’s of the as a signifi In Barrier Great 1981, the Reef was recognised MarineThe Park Natural Heritage. and Cultural World of the Concerning the Protection Convention by and an additional 1 per cent is covered Heritage Area World of the 98 per cent around now covers Barrier by the Great Queensland islands and Reef to parksQueensland national relation established in waters’. ‘internal be Queensland considers to some areas to established in relation MarineCoast Park rst fi In Barrier International 1990, the the Great Reef as the world’s Maritime declared Organization coast between the Queensland the northernmostThis PSSA covers (PSSA). Particularly Sea Sensitive Area and a point just north It impacts allows the potential of Bundaberg. of shipping York extremity of Cape such as compulsory detailed measures activities traffi be managed through to pilotage, the (EMC) amendments to ManagementIn Charge through 1993, an Environmental was introduced schemes, discharge restrictions and a vessel traffi restrictions a vessel and discharge schemes, 1975 Act Barrier Reef Marine Park but also by non- is primarily tourism operators, The charge paid by commercial activities in the Marine Park. The exact charters amount tourism commercial and persons operating facilities within the Marine Park. In 2004–05, per visitor. is $4.50 per day charge the current tourism operators, For varies. of the charge the Authority to to This money was appropriated the EMC. $7.2 million was raised through approximately manage the Marine Park. catchments owing from A Memorandum in water quality of Understanding aimed at halting the decline fl Minister and the 2002 by the Prime Barrier in August the Great Reef lagoon was signed into discharging of the the development This led to of Queensland. Premier Act 1993 Act d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d

1 Figure 1: Current governance and accountability framework

"EWJDFPOBSFBTUPCF &NFSBME EFDMBSFEQBSUPGUIF "HSFFNFOU .BSJOF1BSL 2VFFOTMBOE "VTUSBMJBO (PWFSOPS (PWFSONFOU (PWFSONFOU (FOFSBM /PNJOBUFTNFNCFSPG "VUIPSJUZBOEPG NFNCFSTPGUIF $POTVMUBUJWF$PNNJUUFF (SFBU#BSSJFS3FFG.JOJTUFSJBM .JOJTUFSGPSUIF&OWJSPONFOU $PVODJM "QQPJOUNFOUT BOE)FSJUBHF v 5XP.JOJTUFSTGSPNFBDI HPWFSONFOU v 0WFSTFFTQPMJDZBOE v (FOFSBMEJSFDUJPOT "EWJDFUPHPWFSONFOU "EWJDFPO EBZUPEBZNBOBHFNFOU v "QQSPWBMPG POQSPUFDUJPOBOE FOWJSPONFOUBM [POJOHQMBOT NBOBHFNFOUPGUIF BOEXIPMFPG v "QQSPWBMPG (SFBU#BSSJFS3FFG QPSUGPMJPJTTVFT FYQFOEJUVSFPWFS v (FOFSBMBEWJDF "EWJDFPO BOEMFBTFT v "SFBTUPCFEFDMBSFEB PQFSBUJPOPG PWFSZFBST QBSUPGUIF.BSJOF1BSL %BZUPEBZ 3FFG8BUFS2VBMJUZ UIF"DU v 0SEFSTUPSFTUPSF v ;POJOHQMBOT NBOBHFNFOU 1SPUFDUJPO1MBO UIFFOWJSPONFOU v 3FHVMBUJPOT BHSFFNFOUT "QQPJOUNFOUT

"EWJDFPONBUUFST (SFBU#BSSJFS3FFG SFMBUJOHUPUIF.BSJOF .BSJOF1BSL"VUIPSJUZ %FQBSUNFOUPGUIF 1BSL v &TUBCMJTIFECZUIF"DU &OWJSPONFOUBOE v $PNQSJTFTNFNCFST )FSJUBHF

Review of the the of Review 0UIFS "VTUSBMJBO $IBJSQFSTPO (PWFSONFOU PG"VUIPSJUZ $PPSEJOBUJPOPGEBZUPEBZNBOBHFNFOU BHFODJFT BNFNCFS $PPSEJOBUJPODPPQFSBUJPOPOBSFBT (SFBU#BSSJFS3FFG PGDPNNPOJOUFSFTU 2VFFOTMBOEBHFODJFT Great MarinePark Reef 1975 Barrier Act $POTVMUBUJWF$PNNJUUFF v &TUBCMJTIFECZUIF"DU .FNCFS v $PNQSJTFTUIF$IBJSQFSTPO $PNNVOJUZ "QQPJOUNFOUT "EWJDF .FNCFSPG PGQBSUJDJQBUFT PGUIF"VUIPSJUZBOEBU WJFXT $PNNJUUFFT JO$PNNJUUFFT MFBTUNFNCFST

-PDBM.BSJOF"EWJTPSZ 3FFG"EWJTPSZ$PNNJUUFFTY $PNNJUUFFT -."$ Y v $POTFSWBUJPO 'JTIFSJFT 5PVSJTN v &TUBCMJTIFECZUIF"VUIPSJUZ BOE3FDSFBUJPO 8BUFS2VBMJUZ v 3FQSFTFOUBUJWFPGMPDBM v &TUBCMJTIFECZUIF"VUIPSJUZ DPNNVOJUJFT v &YQFSUJTFCBTFE

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6 0 / 9 / 2 112/9/06 10:39:58 AM has also impacted on , a new fi nancial management framework was applied , a new fi provides the framework for the establishment, planning the establishment, the framework for provides Mackayces in Cairns, and Rockhampton community facilitate engagement. to Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great Marine Park, including the areas that should be declared to be a part to Marine that should be declared of the Park including the areas Park, Plan the Act, Regulations and 2003 Zoning functionspermitting and approval and enforcing the Marine Park. 2 3

the Authority. Functions of the Authority Functions The The agency is a part of the Environment and Heritage portfolio. Its headquarters are in Townsville and it The agencyTownsville a part is Its and Heritage portfolio. Environment of the headquarters in are offi has small regional approach national the point of view of regulatory the integrated governance, From the Authority. to by the introduced 7 and 8 of the Act The functions set out in ss. of the Authority are and management of the Marine Park. and include: • of the and development the care advising and making to the Minister to in relation recommendations • plans and plans of management zoning developing • includes performingThis with the Queensland Government. cooperatively the Marine managing Park • the Marine carrying to Park relevant research out or arranging • of education, advisory the provision services for or arranging and informational providing to relating permit and associated zoning through a role, the Authority have to these functionsPerforming requires tourism, construction farming development, facilities and shing, of fi 32), in the regulation (s. requirements activities to undertakenAct be made under the Regulations in relation may shipping. outside the Marine in a manner harmful animals and plants in the Park. water to that pollute Park impact tourism Environmental shing and industries. The Authority interacts extensively with the fi activities. core are compliance and enforcement and monitoring, assessment, the issuing of permits, Species conservation, such as coastal threats quality and the monitoring water of emerging protection The Authority relies management role. change also fall within the Park and climate development and research c scientifi deliver on networks to predominantly and partnerships providers with research and advisoryThe education, information includes the role Barrier the Great Reef. to monitoring relevant services of information as the provision as well Townsville, in management of the Reef HQ Aquarium and programmes. The Authority has a Consultative Committee established under the Act (s. 20, s. 22, and s. 25). It 22, and s. 20, s. comprises established under the Act (s. Committee The Authority has a Consultative The Queensland a member of the Authority the Chairperson) (currently and a minimum of 12 others. to is role The Committee’s members. at least one-third nominate Government may of the Committee’s the operation of the Act to relating on matters or on its own initiative, either on request advise the Minister, 25). 22, s. 21, s. 20, s. (s. the Marine to Park relating on matters on request, advise the Authority, and to in MarineBetween 1999 and 2005, the Authority Advisory Local established 11 (LMACs) Committees the local communities in the as a means of involving Cooktown to Bundaberg from coastal centres and conservation development sustainable management, ecologically of the Marine In Park. 2000, four to advice in relation provide Reef to Advisorythe Authority (RACs) established four Committees Quality Development; and and Coastal Water Fisheries; and Recreation; Tourism critical issues as follows: Conservation, Heritage and Indigenous Partnerships. during the period 2004. Among other framework governance has evolved 1975 to The Authority’s Barrier the Great Reef Ministerialestablished and was was signed, Council the Emerald Agreement things, the delivery for In of day-to-dayagreements 1997, with the introduction of the management developed. 1997 Act Authorities and Companies Commonwealth d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d the Minister’s powers inrelation are to theAuthority setoutinthe established bylegislation,hasadegree theAuthority ofindependencefrom theMinister. More specifi cally, Environment hasoverall andHeritage responsibilityfor theAuthority. However, authority asastatutory oftheEnvironment Portfolio. andHeritage ispart The Authority As such,theFederal for Minister the forRole oftheMinister theEnvironment andHeritage several key sources:several the key The role ofQueenslandintheoperation,managementandregulation Reeffl oftheGreat Barrier owsfrom approval ofany expenditure exceeding of into $150000andtheentering ofleasesbytheAuthority • ofRegulations, includinginrelation inareas to onthemaking activities advisingtheGovernor-General • ordering restoration oftheenvironment where damagehasbeencausedbyanoff • approval andtablingofzoning plans(s. 33) • ontheproclamation Park ofareas advisingtheGovernor-General oftheMarine (s. 31) • ofmemberstheConsultative appointmentandtermination Committee (s. 22(1)ands. 27) • ontheappointment,resignation advisingtheGovernor-General ofAuthority andtermination • giving generaldirectionsto theAuthority. mustcomplywiththesedirections(s.The Authority 7(2)) • and are asfollows: 1995 Off Waters (StateTitle) Act 1980 The waters. Underthe provided to theStates. Consequently, Park theMarine lieswithinbothCommonwealth andQueensland seato adistanceofthreeterritorial nauticalmilesfrom theshoreline (more specifi cally, the‘baseline’) was Under the1979Off Queensland Governmentoffi also provides for for arrangements to otherAustralian make theAuthority Governmentoffi with theQueenslandGovernmentorany oftheQueenslandGovernment’s agencies(s. 8(3)). The Act forThe Act, example, incooperation any provides ofits functions withthepower to theAuthority perform in relation to therole oftheAuthority, Park complexities. themanagementofMarine andjurisdictional coastal waters areto theoperationof subject Commonwealth to regulate, hasjurisdiction through the A later Off to allwaters ReefRegion, to withintheGreat thelowwater whichextends mark. Barrier fi Marine withinthe sheries Park. is managedbytheAustralian Government.Consequently, for Queenslandhasmanagementresponsibility fi inthewaters adjacent sheries to theQueenslandcoast,except for thearea ofthe Sea Coral Fishery, which Management Act 1991 Queensland coastto bemanagedbyasinglesetoflaws undertheprovisions ofDivision3the Role and jurisdiction ofQueensland andjurisdiction Role

3 3 more than10years duration (s. 56andr. 207). uponthePark impacts Park, where(s. to theactivity 66) theMarine external (s. 61B) members (s. 10(2),s. 11,ss. 4–16) Great BarrierReefMarinePark Act 1975 shore Constitutional Settlementsandtheassociated shore Constitutional Settlement entered into in1995provides for fi adjacent to the sheries Coastal Waters (StatePowers) Act shore Constitutional Settlement and related coastalwaters legislation, titleto Australia’s (Qld).Underthesearrangements, Queenslandisresponsible for themanagementof Great BarrierReefMarinePark Act 1975 , Coastal Waters (StatePowers) Act 1980 cers oremployees onitsbehalf(s. to act 42). provides clearreferences to theroleofQueensland andfunctions Great BarrierReefMarinePark Act 1975

1980 (s. 4(3)),however, Queensland’s over rights its Great BarrierReefMarinePark Act 1975 ; the1979EmeraldAgreement; the1979and Seas andSubmergedSeas LandsAct 1973 Review of the the of Review and Great BarrierReefMarinePark Act 1975 Fisheries ManagementAct 1991 Great MarinePark Reef 1975 Barrier Act ence under the Act ence undertheAct . As aresult, the cers and/or , inrelation , Coastal Fisheries .

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6 0 / 9 / 2 112/9/06 10:39:59 AM Marine Parks Marine Parks shore developments, developments, shore . The Plan was released in 2003. was released The Plan . Reef Water Quality Protection Plan Quality Protection Reef Water (Qld), covers the area in between the low and high water marks, as well as many areas within bays within bays areas many as as well marks, in between and high water the low the area (Qld), covers management. by the Authority. will be approved these procedures endorsed by the Ministerial Council. each government in by the Authority to and submitted approved Rolling Programme, Three-Year of the the context of their budgets. 4 3

The Great Barrier Reef Ministerial Council is responsible for oversight of the joint implementation of the oversight BarrierThe Great Reef Ministerial for is responsible Council under the Plan. 65 actions agreed Planning and reporting framework planning and reporting key in the The Authority’s framework for accountability is presented documents table. following crown-of-thorns starfi sh and oil spills. Water quality and fi sheries management (East Coast Otter Trawl Trawl fi sheries Coast management (East Otter qualityWater and sh and oil spills. crown-of-thorns starfi 1993. around from the Council for as issues emerged Fishery and dugong protection) Minister and the Queensland Memorandum by the Prime A separate of Understanding was signed of a the development in 2002 for Premier The Ministerial Council The Barrier a Great Reef Ministerial for E) makes Council. (Appendix provision The 1979 Emerald Agreement the State Government and two from the Australian two Ministers, from comprisesThe Council four tourism, marine parks not be or science and may environment, government. Ministers must represent mining. for responsible arrangements for includes agreeing as detailed in the Emerald Agreement, of the Council, The role as part of areas the proclamation of the for day-to-day recommendations management, approving research. c of scientifi implementation of a programme overseeing and endorsing and Marine Park during frequently met more The Council The Ministerial held 32 meetings between 1979 and 2005. Council fi rst in declaring policy operational resolved the many to be issues were years when there rst 10 the fi with period, The frequency the 26-year of meetings has thus varied considerably over sections of the Park. no meetings. were in which there years meetings and four four were when there one year on the declaration of the various has been agreeing the years over prime focus The Ministerial Council’s day-to-daysections the Annual arrangements of the Marine for management, approving agreeing Park, has also The Council day-to-day for management. Rolling Programme Three-Year and Business Plan policy off considered with land management, marine associated issues park zoning, A Queensland State Marine Park (the Great Barrier Reef Coast Marine Park), created under the Barrier created Marine (the Great Reef Coast Marine Park), State A Queensland Park • day-to-day for management and operational procedures will develop The Queensland Government • annually by the Authority and and approved developed will be jointly Three-year Rolling Programme A • by the Queensland Government on the basis be developed will of expenditure An Annual Programme The the basis of funding the day-to-day provides activities. management The Annual Programme and Queensland governments fund day-to-day Australian management on a 50/50 basis. Act 1982 Act Barrier national parks. be its islands in the Great of Reef to many Queensland has also declared and inlets. These complex boundary further discussed issues are and responsibility 5. Chapter in was in day-to-day role Agreement, as established by the 1979 Emerald management, Queensland’s that: include provisions These agreements and 1988. in 1980 signed in agreements delineated • determine The Queensland Government will which of its instrumentalities will undertake day-to-day d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d al : Great BarrierReefMarinePark Authority planningand Table 5: Whitehouse J.F. 1993, • oftheAuthority’sA numberofreviewsaspects businesshave ofvarious over beenconducted theyears: Reviews • Owen S.andHansenG.1994, Owen • Australian National Audit Offi • Tourism Committee Steering Review 1997, • Brown R.1997, • • Dalton V. 2003, Australian NationalAudit Offi • Productivity Commission 2003, • Sturgess G.L.1999, • Futureye Ltd, Pty Teh-White C.,Levine Houston S.,Baxter J. K., and White P. 2005, •

ouetAtoiyApproval Australian Government, Authority Corporate Plan Reef Barrier World Area Heritage 25 Year Strategic Plan for theGreat World Convention Heritage World Periodic Heritage Reporting Document nulSrtgcWr rgam oprt lnBoard Day-to-Day Management Three-Year RollingProgramme for Corporate Plan Annual Strategic Work Programme Day Management Annual BusinessPlan for Day-to- Annual Report Annual Report

3 5 Park Authority World HeritageArea Hill, fortheEnvironment Minister Robert Hon. Senator Marine ParkMarine Authority, Townsville. Canberra. No.Auditor-General 331998,Australian Audit NationalAudit Report Offi Respect oftheGreat BarrierReef oftheRelationshipsCommonwealth Governments intotheReview andQueensland in Area; AReport Follow-up Audit Canberra. Canberra. Park Authority: Enhanced Partnerships Park Community Authority: reporting frameworkreporting , Australian Canberra. GovernmentPublishing Service, , No.The Auditor-General 82003–04,Australian Audit NationalAudit Report Offi Independent Review of the Great Barrier Reef Marine Park Authority: Report Submittedtothe oftheGreat Report BarrierReefMarineParkIndependent Review Authority: Day-to-Day ManagementReview Day-to-Day The Great Cooperation BarrierReefPartnership: intheManagementofaWorld Heritage , Great Barrier Reef Marine Park ReefMarine , Great Authority, Barrier Townsville. Managing MultipleUseintheCoastal oftheGreat Zone: BarrierReefMarine AReview ce 1988, ce (ANAO) 2003, Review oftheEnvironmental ManagementChargeReview , QueenslandGovernment,Brisbane. Industries, LandUseandWater intheGreat BarrierReefCatchment Quality Companies Act 1997 Commonwealth Authoritiesand day-to-day management day-to-day and Queenslandgovernmentsfor Basis ofagreement theAustralian between management and Queenslandgovernmentsfor day-to-day Basis ofagreement theAustralian between Companies Act 1997 Commonwealth Authoritiesand Commonwealth Management oftheGreat BarrierReef Review oftheMarineTourismReview intheGreat BarrierReef Industry Commonwealth Management oftheGreat BarrierReef , Great Barrier Reef Marine Park ReefMarine , Great Authority, Barrier Townsville.

, Futureye Ltd, Pty Melbourne. , R.Brown andAssociates, Brisbane. Review of the the of Review ce, Canberra. Great MarinePark Reef 1975 Barrier Act governments Queensland Australian and UNESCO Board Ministerial Council Ministerial Board Ministers Board Chairperson , Great Barrier Reef , Great Barrier Great BarrierReefMarine , The ce, , 112/9/06 10:39:59AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:39:59 AM Great Barrier Reef Great and control of the crown- and control GBRMPA Executive, Legal Services & Parliamentary Liaison 4% Corporate Services 9% Conservation, Heritage & Indigenous Partnerships 3% Fisheries 2% Science, Technology & Information 14% Community Partnerships 2% Communication & Education 16% Water Quality & Coastal Development 3% Tourism & Recreation 3% Program Delivery 4% Day-to-day Management 33% Other (Accrual Items & Depreciation) 2% Reef CRC Support 5% 14% 2% Reef Water Quality Protection Plan Quality Protection Reef Water 2% 3% 16% 9% 4% , monitoring of the 3% 5% 3% 2% 4% 6 3

33% of-thorns starfi sh. This Natural Heritage Trust funding is part of a total of $21.4 million over three years, with years, Trust funding is part three $21.4 million over total of of a This Natural Heritage sh. of-thorns starfi change a climate of funding being 2006–07. In 2005–06 from is $0.4 million in the last year addition there of funding being 2007–08. year with the last years four funding of $1.3 million over programme 2005–06. function by administrative an overview for expenditure 2 provides of the Authority’s Figure Barrier the Great Reef is to relevant research funding for by the Authority, In expenditure addition to This facility will make Facility. Sciences Research Tropical Marine and the Commonwealth through available ve-yearto support public policy 2005 periodresearch from environmental a fi over $40 million available World Tropics Wet including the rainforests tropical Barrier the Great Reef and its catchments, to related Strait. Torres and the Heritage Area Figure 2: Figure by expenditure Authority Barrier Reef Marine Park Great section 2005–06) (Budget administrative Marine Park Zoning Plan 2003 Plan Zoning Marine Park 4.3 The Authority’s budget 4.3 Authority’s The This comprises a departmental year is $38.1 million. nancial the 2005–06 fi budget for The Authority’s revenue ecting anticipated of $7.4 million refl of $15.4 million and a special appropriation appropriation (see section Management Charge 4.1). Of $4.8 million is provided the Environmental the total, from the Reef 50 per cent contributionby Queensland as their day-to-day to from management. Revenue In also is $8 million 2005–06, there 85 per cent cost recovery. million, equivalent to is $2.6 HQ Aquarium of the enforcement education and for Trust the Natural Heritage funding from in grant d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Figure 3:Great BarrierReefMarinePark Authority organisational structure following thecommencementinmid-2004of auditbytheAustralian NationalAudit Offi the performance reflThe Authority’s structure, inpart, theorganisation’s ects response to the recommendations of The oftheAuthority structure 4.4 staff offi managementandexecutive (Figure day-to-day functions additionto services, corporate themain 3).In provided byscience/information, education,programme services delivery,partnerships, community Partnerships; Fisheries; andIndigenous Heritage and Conservation, Tourism andRecreation), withsupport organisational structurefocused andCoastal Development; Quality onfour issuegroups critical (Water Executive, Executive theChairperson/Chief comprising Offi

ce in Townsville, hasregional theAuthority offi 3 7 located in Canberra. An outline of these areas and activities isgiven Anoutlineoftheseareas located inCanberra. andactivities below. 4DJFODF 5FDIOPMPHZ $PNNVOJDBUJPOBOE 1SPHSBNNF%FMJWFSZ BOE*OGPSNBUJPO $PBTUBM%FWFMPQNFOU &EVDBUJPO 8BUFS2VBMJUZBOE %JSFDUPS %JSFDUPS %JSFDUPS %JSFDUPS &YFDVUJWF %JSFDUPS 5PVSJTNBOE 3FDSFBUJPO %JSFDUPS $IBJSQFSTPO$&0 ces in Cairns, Mackay and Rockhampton, aswell astwo andRockhampton, ces inCairns, Mackay Great BarrierReefMarinePark Zoning Plan 2003 cer and two Executivecer andtwo Directors, managesan ce (1998).Additional changesoccurred 'JTIFSJFT*TTVFT %JSFDUPS Review of the the of Review &YFDVUJWF Great MarinePark Reef 1975 Barrier Act %JSFDUPS $POTFSWBUJPO )FSJUBHFBOE *OEJHFOPVT1BSUOFSTIJQT %JSFDUPS $PSQPSBUF4FSWJDFT .JOJTUFSJBM-JBJTPO 1BSMJBNFOUBSZ 4FSWJDFTBOE .BOBHFNFOU -FHBM4FSWJDFT 1BSUOFSTIJQT $PNNVOJUZ %BZUP%BZ %JSFDUPS %JSFDUPS %JSFDUPS %JSFDUPS %JSFDUPS . The 112/9/06 10:39:59AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:00 AM ecting ecting the Great ective management ective ecting quality water taken assessments and activities referred under under assessments and activities referred support management of the group of this the executive . It is also responsible for shipping incident response processes processes shipping incident response . It for is also responsible . The Group’s recent work has included new load-based and boat- recent The Group’s . cer, the two Executive Directors, and the Legal Services and the Legal Directors, and Parliamentary the two Executive cer, Integrated Planning Act 1997 Act Planning Integrated budget $1.7 million) 12 ; budget $1 million) ; ; budget $0.6 million) ; budget $1 million, includes $0.3 million from the Natural Heritage Trust) Trust) Heritage the Natural ; budget $1 million, includes $0.3 million from Reef Water Quality Protection Plan Quality Protection Reef Water Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment 8 3

(6 staff Australian Government Department the sheries managers, of the works with Queensland fi The Group and Heritage and other stakeholders of the Marine in achieving both the protection Environment Park impacts Park that minimise the environmental sheries within the Marine sustainable fi and ecologically shing. of fi of the Authority Marine manager in a multiple use as ecosystem the role This work arises Park. from of such plans is and in the preparation plans, zoning develop to Under the Act, the Authority is required Barrier the Great Reef whilst allowing protect to ‘regulation objectives including to regard have to required 12 2005–06 full-time equivalent Queensland’s enhance community to stewardship programme Councils the Reef Guardian in developing and is involved Barrierof the Great Reef. occurring the sustainability ensure of tourism and recreation is to role Group’s and Recreation Tourism The monitoring and evaluating eff in the Marine Activities include developing, Park. partnerships strong between recreational promote the tourism industry, arrangements to and systems and Responsible Reef Tourism bodies and government. Responsibilities include the High Standard within the high use areas for of an allocation process and development programmes, Practices Vessel a voluntary arrangements through processing streamlined has recently The Group Marine Park. anchorages 26 designated for cruise ships and permit system a standard cation Number system, Identifi cruise ships. for Issues Group Fisheries based licensing arrangements for sewage discharges. The Group coordinates the Authority’s response response the Authority’s coordinates The Group sewage discharges. based licensing arrangements for for Group and Recreation Tourism (8 staff Services and Ministerial Liaison units. The staff Services and Ministerial Liaison units. as legal and as well allocation, agency and resource planning, coordination strategic Authority through parliamentary and 20 per annum 10 to services. amendments range from cases and legislative Litigation year. ngs and submissions) each briefi (letters, between handles 250 and 600 ministerial matters the group Group Development Quality and Coastal Water (10 staff works in partnership Quality Development Group and Coastal of government, with all levels Water The industry quality of declining water aff the problem and the community address to for the management of activities aff standards and approaches nes the defi The Group Barrier Reef. uence actions aff infl also seeks to The Group qualitywater in the Marine Park. in the implementation and monitoring of actions under is involved The Group outside the Marine Park. the Executive Group Executive (13 staff namely the Authority, management of the comprises the executive Group The Executive OffiChairperson/Chief Executive d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d stock assessmentsoftarget assessmentsfor species. andby-productspeciesrisk by-catch • research into environmentally fi friendly shingpractices • identifi cation,quantifi of cationandmitigationoftheecological impacts fi shing • consultationandnegotiation,atmany committees levels, to improve through advisory fi sheries • andfacilitates: the Environment andotherstakeholders,undertakes andHeritage The Group, with Queenslandfi inconjunction of managers, sheries the Department GovernmentAustralian fi managersandcommercial sheries and recreational shers. fi associated ofindividualfi withtheecological sustainability and sheries requires with closeinteraction on target, non-target andthreatened species. withissues alsointersects Consideration oftheseimpacts monitored attheecosystem level, from andinrelation andhabitatperspective abiodiversity to impacts recreational fi shingarethatfallwithinthis activities requirement. Marine onthe areFishing impacts Park as to minimise theeff reasonable use’ and ‘regulation thatexploittheresources ofactivities ReefRegion oftheGreat so Barrier Aquarium. This involves 21ofthe39staff Group operates areadily accessibleonshore reef andinterpretive experience centre through HQ theReef educational campaigns andresources to raiseawareness ofthevalues World Area. Heritage The Aquarium. The Group produces allcommunicationtools for anddevelops andimplements theAuthority including communications, mediarelations andeducationneeds, andisresponsible for theReefHQ thewidercommunicationneedsofAuthority,The Communication andEducationGroup services Natural Heritage Trust) (39 staff Communication andEducationGroup research involvement andeducation. Owner anditsmanagement,seacountry intourism management,wassigned in2005.Relationshipsare alsobeingprogressedcountry through Traditional Agreement, whichisacooperative approach with developed inconjunction Traditional for sea Owners Aboriginal and Torres StraitIslandergroups. For example, thefi rst ResourcesMarine Traditional Useof CommitteeHeritage inJune2003. The Group alsofosters with arrangements theAuthority’s partnership Region, Reef includingtheGreat Barrier World Area, Heritage wascompleted andapproved bythe World ConventionHeritage conventions. andotherinternational The fi rst for the Asia–Pacifi Report Periodic c The Group isalsoresponsible for matters, heritage aswell asmeetingtherequirements ofthe World identifi cationofspeciesthatare risk’‘at andtheimplementationofappropriate management responses. the protection ofthreatened Reef speciesandtheGreat Barrier World Area. Heritage includethe Activities Partnerships Group andIndigenous develops Heritage andimplementsinitiatives for The Conservation, (9 staff Partnerships Group Heritageand Indigenous Conservation, Guardian programme. Schools on the $2.6 millionperannum. Park toThe Group theMarine rezoning provided support andcommunication

3 9 management arrangements Reef Water Protection Quality Plan ; budget$1million) , 21for ReefHQAquarium; budget$6 million,includes$2millionfrom the ect of those activities on the Great Barrier Reef’ ontheGreat ofthoseactivities Barrier ect (s. 32(7)(b)&(c)).Commercial and and Monitoring Programme. andMonitoring The Group alsodeveloped theReef oftheGroup. from theReefHQAquarium raisesaround Income Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:00AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:00 AM ce Reef Water Reef Water Sea Installations Act to users (maps, boat users (maps, to and the ectiveness of the Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Park Barrier Reef Marine Great Environment Protection (Sea 1981 Dumping) Act Protection Environment and has established a collaborative project with the Australian Greenhouse Offi Greenhouse project with the Australian a collaborative and has established cers based in Cairns, Townsville, Mackay and Rockhampton who work in the Cape York, York, Mackay and Rockhampton who work in the Cape Townsville, cers based in Cairns, ; budget $0.8 million) ; budget $1.7 million) ; budget $7.1 million includes $2.4 million from the Natural Heritage Trust, Trust, Heritage the Natural million from ; budget $7.1 million includes $2.4 , 80 from Queensland Parks and Wildlife Service; budget $13 million, Wildlife and Queensland Parks , 80 from . 0 4

ramp signs, and electronic products for global positioning systems). for and electronic products ramp signs, 1987 Day-To-Day Management Programme Management Programme Day-To-Day (88 staff Trust) Heritage the Natural includes $3.3 million from and Queensland is jointly funded by the Australian Management Programme The Day-To-Day Park, Barrierfor the Great Reef Marine eld management fi provides The programme governments. Barrier and Queensland island national parks. Marine Great Reef Coast Park Queensland’s to prepare a Climate Change Action Plan for the Great Barrier Reef. The Group has an expertThe Group Spatial Data Barrier the Great Reef. for Change Action Plan a Climate prepare to research, systems, including global information systems, analytical and information that provides Centre a wide range of also produced The Group databases. Management Charge compliance and Environmental the communicate mapping products to Group Partnerships Community (11 staff assisting the Authority engage with communities to for is responsible The Community Group Partnerships and systems of strategies, and coordination Barrier the development along the Great Reef coast through further was established to the The group develop best practice community for engagement. programmes a range of facilitates The Group rezoning. of stakeholder with the Marinelevel engagement associated Park the Local manages stakeholder meetings each year, engagement activities of formal hundreds including The group Marine Advisory Schools programme. and works with schools on the Reef Guardian Committees has eight liaison offi Northern, Northern,Far and Southern Central Regions. Programme Delivery Group Programme (24 staff Delivery undertakes including Group impactThe Programme management matters, all environmental of plans of well as the development Plan, as Zoning by the 2003 required cations permits and notifi impact management tasks The environmental arrangements. management management and other site as a range of lower as well works in the Marine or structures Park involve that include major developments islands within the management of the 21 Commonwealth for is responsible The Group risk activities. statutory has developed The Group plans of property. Commonwealth and associated the Marine Park manages the The Group areas. Bay HinchinbrookShoalwater Cairns, and Whitsundays, the management for and adjacent Queensland marine the Marine park,joint permit arrangements for Park and is responsible activities under the relevant for The Science, Technology and Information Group’s function is the application of science, technology and function technology is the application of science, Information and Group’s Technology The Science, cross-agency and coordinates The Group decisions and education programmes. policies, to information and technological information research, coordinates inter-agency interaction monitoring on programmes, Park management and ndings into Marine fi of research the integration ensures needs of the Authority, The partners. works closely with 18 key The Group research reports condition of the Marine on the Park. the eff monitor to has established the MarineGroup Monitoring Programme Plan Quality Protection Science, Technology and Information Group Group Information and Technology Science, (32 staff $0.4 million climate change funds and $1.9 million payment to the CRC Reef) to payment change funds and $1.9 million $0.4 million climate d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d • ensuring compliancewiththe ensuring • Programme oftheDay-to-Day Management activities The priority are: untilmid-2007. contract 499 in2004–05. Three-year NaturalHeritage Trust 10compliancestaff fundinghasprovided afurther Federal Police. ofcomplianceoff Reports Water Police, UnitandtheAustralian ofCoastwatch, theCustoms aswell asactivities NationalMarine providedmanaging bytheQueenslandBoatingandFisheries vessel patrol services Patrol andQueensland Programme Coordination Unit. complianceprogramme.This Unitcoordinates themulti-agency This entails QueenslandParks andtwo (eight Authority and withintheDay-To-DayWildlife Service) Management The programme currently funds78QueenslandParks and fiWildlife Service eld-basedstaff Authorities andCompanies Act 1997 ChargeManagement andensures meetsitsrequirements thattheAuthority underthe resource, secretariat andoffi for theAuthority, services Group includingfi provides support The Corporate Services nance, human (24 staff GroupCorporate Services • implementing Indigenous co-management programmes. co-management implementingIndigenous • naturalandculturalresource islandandmarine andmanagement monitoring priority undertaking • management andpermit providing information services • providing visitor facilities, naturalandculturalresource protection • directlyrelated protection andactivities works to vulnerablespeciesandtheirhabitat undertaking • resource managementlegislation.

4 1 projects compliance issuesto prevent environmental serious harm dugong protection, the2003Zoning Plan, andespeciallythehighlyprotected zones andemerging 1982 and ; budget$4.2million,includes$0.9millionfor accrual items anddepreciation) Nature Conservation Act 1992 ce services. ce services. The Group oftheEnvironmental administers thecollection Great BarrierReefMarinePark Act 1975 , the Public Service ActPublic 1999 Service ences have inlevel, varied withpeaksof420in2000–01and , and subordinate Regulations related, andsubordinateRegulations to lineandtrawl fi sheries, andotherrelevant fi nancialandhuman Review of the the of Review , theQueensland Great MarinePark Reef 1975 Barrier Act Commonwealth MarineParks Act and10staff on

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6 0 / 9 / 2 112/9/06 10:40:00 AM ), there has been there erent purposes erent Great Barrier Reef Marine Great Reef Water Quality Protection Plan Quality Protection Reef Water if the development is likely to have a is likely have if the development to and the Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Framework for a National Cooperative Approach to Integrated Coastal Coastal to Integrated Approach for a National Cooperative Framework airs, resources and energy. To ensure consistency in the ensure of approach To and energy. resources airs, (NRMMC 2003)) and climate change. Other policy areas of relevance include customs, Other change. (NRMMC 2003)) and climate include customs, policy of relevance areas . Additionally, there are around 20 key pieces of Commonwealth and State legislation and legislation and State 20 key around of Commonwealth pieces are there . Additionally, National Action Plan for Salinity and Water Quality for Salinity Plan National Action and Water shore Constitutional Settlement. The application of these boundaries for diff The application of these boundaries for Settlement. Constitutional shore 4 4

much international debate on the level of protection of the coastal and marine environment. Australia Australia of the coastal and marine of protection environment. on the level much international debate has participated and has become a party in this debate and a range of international agreements to during this period. conventions coastal development (including the (including coastal development Management Zone Indigenous aff maritimesafety, it is important management level, application at both a national and Marine that jurisdictional Park and clear. agency remain responsibilities is also subject the jurisdiction management of the Marine to Barrier Park of the Great above, Reef noted As facilitate to of 1979 and is designed has its basis in the Emerald Agreement Council The Ministerial Council. Barrier management of the Great Reef. cooperative 5.2 Policy environment 5.2 Policy of the the protection for International policy environment and marine environments coastal In initial establishment of the since the the 30 years 5.1 Overview environment of the operating BarrierManagement of the Great Reef takes regulatory place within a complex and policy environment, and inter- and informal formal and policy legislation a range of national and State measures, involving sectionThis complex examines these intra-governmental and international conventions. agreements Barrier management of the Great Reef. arrangements for and their implications Barrier directly by the is governed the Great The management of Reef Marine Park 5 Operating environment environment 5 Operating Park Act 1975 Act Park eight international conventions applicable (see Appendix F). Management of the Marine Park requires the applicable (see Appendix F). Management requires of the Marineeight international conventions Park and Queensland government agencies 20 other Australian Authority interact with around to (see Appendix G). the United ned under defi are legislation and State The maritime boundaries applied in Commonwealth under the Territories and with the States of the Sea agreed 1982 and on the Law Nations Convention 1979 Off in various Acts results in a range of overlaps, gaps and inconsistencies in the legislative framework. For framework. in the legislative gaps and inconsistencies For in a range of overlaps, in various Acts results construction development example, of a tourist facilitymarina and require a Queensland island may on under the the Authority the Queensland Government, a permit and an approval from from approval 1999 and Biodiversity Act Conservation Protection Environment World Heritage Area. cant impact on the signifi range of national and is imposed by a broad environment A further operating the Marine to Park layer and management of the international policy that intersect with regulation issues and programmes the major pressures to relate those that are The key the Marine to policy Park relevant Marine areas Park. biodiversity conservation, protection, environment These include Australia’s Barrierfacing the Great Reef. management (including the Natural Heritage resource sheries management, natural fi Oceans Policy, the Trust, d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d 2015for therestoration ofdepleted fi shstocks. • 2012for theestablishmentofrepresentative Protected Marine basedonscientifi Area networks c • 2010for theapplicationofanecosystem approach to oceanandfi management sheries • andcoastalareas marine andproposed dates of: ofimportant biodiversity The 2002 World and emphasisedtheneedto SummitonSustainableDevelopment maintainproductivity Nations Year in1998provided oftheOcean focus aninternational for theissue. goal of20percentExclusive EconomicZones andthehighseasbeingprotected by2020. The United scientists for anincrease inthenumberandeff bythe supported World Parks Congress 1998,there wasa in1992 and2003.In ‘call to action’ bysome1600 inperpetuity. oftheworld heritage understanding andenjoymentofthemarine This approach was a representative Protected system ofMarine Areas to provide for theprotection, restoration, wiseuse, Assembly recommended Union)General inCosta Rica establishing Conservation The 1988IUCN(World Commonwealth fi ProtectedMarine Area objectives. ofthisprocess objective isto provideA key for thatare thecontinuationofactivities compatiblewith ofthiscommitmentisbeingprogressedImplementation inconsultationwiththeStates and Territories. gave acommitmentto establishanationalrepresentative Protected system ofMarine Areas by2012. At the2002 World inJohannesburg SummitonSustainableDevelopment theAustralian Government ProtectedMarine Areas. particular, commitstheAustralian Governmentto theestablishmentofanationalrepresentative system of The Policy for setsinplaceaframework ecosystem-based managementofAustralia’s areas, marine andin biological theprotection competitiveindustries,internationally ofmarine whileensuring diversity. marine the ecologically sustainabledevelopment oftheresources ofAustralia’s oceansandtheencouragementof cared for, understood andusedwiselyfor thebenefi tofall, nowandinthefuture’. The provides Policy for The Australian Governmentreleased Australia’s broad visionis Policy Oceans in1998.Its ‘Healthy oceans: National oceans andfi the statusoffi decade, however, many Australian fi the neteconomicreturns to from theAustralian community themanagement ofthosefi Act 1991 over-fi Government 2005) have beenintegrated withthegovernment’s $220millionpackage, Australia off Protected Areas covering171000squareofCommonwealth of kilometres waters inthesouth-east 2005theAustralian December Governmentreleased In proposals for ofMarine anextensive network in regard to onfi Australian Governmentand State policy adjustment. management andstructural sheries ProtectedMarine Areas evolves, theimplicationsforPark theMarine willneedto beconsidered, especially 17 commercial fi withinthe sheries RegionalMarine Planning and Park rests withQueensland.on As policy liesinbothCommonwealthuse. It andState waters, butresponsibilityfor themanagementof managementisecosystem-based andprovidesmost visited managed. andmostactively for Its multiple Among Commonwealth Protected Marine Areas, Park ReefMarine theGreat istheoldest,largest, Barrier Region are toSouth-East Marine expected befi nalisedin2006, following publicconsultation. Protectedimplementation oftheMarine Areas. Protected oftheMarine The boundaries Areas inthe provide fi nancialassistance adjustmentthroughto deliver structural in reduction shingeff fi

4 5 information andconsistent law withinternational shed and 54 per cent have uncertain statusdueto insuffi shed and54percenthave uncertain . are oftheseActs The objectives to managefi Tasmania, Australia NewSouth South eastern Victoria, andfarsouthern Wales. These proposals sh stocks managedbytheAustralian Governmentshowed that23percentoffi sheries aresheries managedunderthe , to address over-fi shingin Commonwealth managed sheries. will fi Thispackage sheries have been in decline. A Bureau of Rural Sciences (2004) report on havesheries beenindecline. on ABureau ofRuralSciences(2004)report sheries policy ectiveness of Marine Protected ofMarine ectiveness Areas withanaspirational Fisheries ManagementAct 1991 sheries on an ecologically sustainable basis and maximise onanecologicallysheries sustainablebasisandmaximise cient dataavailability. Review of the the of Review Securing Our Fishing Our Securing Future Great MarinePark Reef 1975 Barrier Act andthe sheries. Over the last thelast sheries. Over Fisheries Administration sh stocks are now sh stocks are now ort andthe ort (Australian 112/9/06 10:40:01AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:01 AM in 2003. This in 2003. through the through are the Australian the Australian are of the Great the waters into initiatives. The Prime Minister and the The Prime initiatives. Reef Water Quality Protection Plan Quality Protection Reef Water Reef Water Quality Protection Plan Quality Protection Reef Water National Action Plan for Salinity and Water Quality for Salinity Plan National Action and Water is integrated and occurs on a regional basis in partnership basis of and occurs on a regional with all levels is integrated Framework for a National Cooperative Approach to Integrated Coastal Zone Zone Coastal Approach to Integrated for a National Cooperative Framework National Action Plan for Salinity and Water Quality for Salinity Plan National Action and Water change will be a major factor climate in the to ectiveness of the international response (NRMMC 2003) in response to this increasing pressure. Priorities for the framework are: the framework are: for Priorities pressure. this increasing to (NRMMC 2003) in response National Action Plan National Action 6 4 change. climate to ective global response

Great BarrierGreat Reef Ministerial Council. Queensland Premier oversee the implementation of the oversee Queensland Premier Plan seeks to halt and reverse the serious quality Barrier decline in water entering the Great reverse halt and Reef over seeks to Plan actions. Implementation is supported 60 agreed contains over Plan The by the Natural the next decade. Heritage Trust and Government’s major programmes for natural resource management. Delivery of the Natural Heritage Trust Trust management. Delivery natural resource of the Natural Heritage for major programmes Government’s and the community. government and the natural to Management national approaches MinisterialThe Natural Resource coordinates Council It management. is supportedresource of advisory and a number by a Standing Committee boards. cance on issues of national signifi advises the Standing Committee A Marine Committee Coastal and the conservation to of marinerelating and coastal sustainable development and ecologically and resources. ecosystems cant Barrier signifi the Great Reef can have adjacent to areas management in catchment Natural resource quality in particular, water and habitat protection, The major issues are impacts on the Marine Park. and run-off discharges Pollutant and wetlands. grounds estuarine breeding to biodiversity and can impactresilience of coral colonies and on the cant threat Barrier Reef pose a signifi dugong. for source main food the which are the health of marine such as sea grasses, ecosystems the adjacent to in catchments management issues natural resource address to a major step Recently, BarrierGreat Reef was taken of the with the development long-term survival of the Great Barrier Reef ecosystem. The World Parks Congress held in Durban in 2003, Congress Parks World The long-term survival Barrier of the Great Reef ecosystem. networks Area (IUCN 2003), recognised of Marine on a global system Protected in its recommendations alone. management measures by conventional cannot be addressed that climate-related global threats Climate change Climate 2001) Barrier (IPCC the Great Reef ecosystem to threats one of the biggest future change presents Climate Government The Australian of the region. the social and economic welfare and consequently to in 2004 (DEH 2005), supported change strategy climate by funding of announced a comprehensive gas emissions and build an greenhouse which it is working Australia’s $1.8 billion, through both reduce to eff The extent and eff Coastal development Coastal Australia, around on the coastal environment pressure phenomenon is a growing change’ ‘sea The Territory In and October and State Barrier 2003, Australian the Great Reef. including the coast adjacent to governments endorsed the Management • continuum the catchment-coast-sea across integration • land- and marine-based of pollution sources • impacts and opportunities rise change and sea level of climate • pest plants and animals • population change planning for • knowledge, capacity information. building and access to Natural resource management resource Natural and the Trust The Natural Heritage d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d marine environment.marine maininstruments providedThe two underthe legislation parks provides an administrativeMarine andlegalstructurefor managing sensitive areas ofthe areand State parks regulated andmanagedcooperatively. inrelationnational parks to many Reef. QueenslandislandswithintheGreat Barrier The Commonwealth and highwater marks, aswell asmany areas withinbays andinlets. Queenslandhas also established Park, covers ReefCoastthearea theGreat Marine thelow inbetween Barrier park, A Queenslandmarine Park lieswithinbothCommonwealth andQueenslandwaters (seeChapter 4.2)upto thelowwater mark. mechanismfor achievingtheprotection Reef. andwiseuseoftheGreat Barrier is theprimary The Marine are 8andFigure belowandillustratedarrangements inMap summarised 4. anddivisionofresponsibilities boundaries applyingto Reef. theGreatunusual jurisdictional Barrier These geographical areasThe applicationofthesemeasures iscomplicated bythesomewhat inparticular • fi controls pollutionandwater quality sheries• management. • heritage environment protection conservation andbiodiversity management • management parks marine • measures fallinto thefollowing categories: aff activities measures applyto andpolicy A widerangeofAustralian regulatory andQueenslandgovernment 5.3 Regulatory framework by climate change. and catchment area. detailsonthepressure Chapter 7provides Reefpresented ontheGreat further Barrier approach to adaptationacross thecoast Parkmanagement oftheMarine andthewhole-of-government inshapingboththe the resilience importance Reefto oftheGreat suchimpacts,willbeofcritical Barrier Understanding theenvironmental, ofclimate change, socialandeconomicimpacts andhowto improve The establishment of the Great Barrier Reef Marine Park, underthe ReefMarine The establishmentoftheGreat Barrier parksmanagement Marine the Authority shallpreparethe Authority azoning planinrespectofthearea’. requiresThe Act that ‘as Park, anarea oftheMarine after hasbeendeclared soonaspracticable to bepart areas ofthePark. Zoning inparticular permitted Plans andactivities establishthemanagementobjectives are Zoning Plans (s. 32)andPlans(Part ofManagement VB s. 39).

4 7 ecting the Great Barrier Reef, both within and external to the Marine Park. In broad Reef, theGreat terms, Park. In ecting Barrier these to theMarine bothwithinandexternal Review of the the of Review Great BarrierReefMarinePark Act 1975 Great BarrierReefMarinePark Act 1975 Great MarinePark Reef 1975 Barrier Act ,

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G B R i n t e r n a l s f i n a l . i n d d

9 Figure 4: Great Barrier Reef jurisdictional boundaries and regulatory responsibilities

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6 0 / 9 / 2 112/9/06 10:40:04 AM ect on ect and permitences requirements predates the EPBC Act and there are are the EPBC Act and there predates ect of activities that exploit resources, (EPBC Act) is the Australian Government’s Government’s (EPBC Act) is the Australian and the 2003 Zoning Plan specify permit requirements, charges charges specify permit requirements, Plan and the 2003 Zoning Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great manage their impacts, to in order Certain approval ences. activities require within the Marine Park Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great particular area are, or may be, threatened proposals are developed to reduce or eliminate the threats the or eliminate reduce to developed are proposals threatened be, or may particular are, area become extinct or may endangered vulnerable, that are communities ecological other uses of the values of the area 0 5

both gaps and overlaps in their approach and coverage, particularly due to boundary defi nitions. This has nitions. particularly and coverage, both gaps and overlaps in their approach boundary due to defi clarity and a lack of in some areas processes duplicate of responsibilities in some inconsistencies, resulted 4, above). (Figure include off Areas applying within Commonwealth EPBC Act provisions activities for requirements assessment and approval In are species. addition there protected to related These impacts undertaken cant environmental land or waters. Commonwealth within with signifi Environment protection and biodiversity conservation and biodiversity protection Environment The primary legislation for environment and heritage management and protection. It refl ects the outcomes and heritage Itprimary management and protection. environment refl for legislation the for and responsibilities and local governments on roles State between Federal, of an agreement impact assessment, endangered environmental to a number of Acts related The Act replaced environment. and heritage management. areas protected species protection, Barrier as some of the Great complicated Reef is somewhat areas The application of the EPBC Act to within the jurisdiction that fall Government areas apply only to of the Australian of its provisions geographically, of where, issues regardless regulate other provisions whereas Areas), (Commonwealth those that activities or to The EPBC Act can thus apply to that occur within the Marine Park they occur. The boundaries. transcend Park In preparing zoning plans, the Authority must have regard to the objects specifi ed in s. 32(7)(a)–(e), which s. 32(7)(a)–(e), ed in objects the to specifi regard Authority the must have In plans, zoning preparing include conservation, the eff minimising use, allowing reasonable • and conservation protection recovery, the of species and management for is adequate that there • sustainable use managed on the basis of ecologically that activities are within the Marine Park • ict with confl management of use of a particular use may that is appropriate where that there area • particular to of special interest community management of areas groups is cooperative that there • activities. participate to use the Marine able to in a range of recreational Park that people are relate These Plans of Management Marine detailed Plans in place within the four Park. currently are There areas. Whitsunday Hinchinbrook, the Cairns, to and Bay Shoalwater Northern Management Management also 10 Site arrangements Area, in place: two are in the Far There Management Area Townsville/Whitsunday in the three Managementtwo in the Cairns/Cooktown Area, localised plans ManagementThese Site plans are in the Mackay/Capricornand three Management Area. and describe c site the management cant values of the specifi They identify signifi particular use of for sites. arrangements applying. The and off activities. and most commercial the installation and operation of structures discharges, waste example for reserving areas for appreciation and enjoyment and preservation of areas in a natural undisturbed state. and enjoyment and preservation in a natural undisturbed appreciation state. reserving of areas for areas eff into came Programme, Areas the Representative which implemented Plan, The 2003 Zoning detail. in greater Programme Areas the Representative 6 discusses 1 July 2004. Chapter the Marine to recovery facilitating the Park, threats of at reducing directed of Management are Plans Their objectives and other similar outcomes. of high use and/or value areas managing species, threatened 39(Y)(a)–(f) in s. given are ensure: to and are • c values of a conservation the nature cultural and heritage that where values and scientifi values, d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d water mark (ormorewater mark accurately, the ‘baseline’). The 8andFigureQueensland coastalwaters (Map 4,above), thatis, beyond three nauticalmilesofthelow Park provisionsEPBC Act applyto oftheMarine Commonwealth thatare beyond islandsandthoseparts Authority. However, the some casesadministrationofenvironmental assessmentandapproval bythe requirements, isundertaken managementofthe The day-to-day World Area Heritage andCommonwealth List sites, Heritage andin assessmentandapproval requirements.impact provides for themanagementofsites through meanssuchasmanagementplansandenvironmental Park. Listing ontheCommonwealthCommonwealth-owned islandswithintheMarine List Heritage are Park currentlysites two withintheMarine thatare solisted: 1870slight-stations two located on placesonCommonwealthheritage landsandwaters underAustralian Governmentcontrol. There Environment Protection Conservation Act andBiodiversity 1999 addition,theAustralian GovernmenthasestablishedaCommonwealthIn Listunderthe Heritage Area are covered inChapter 3. World Area Heritage isnotcovered byapark. The requirements associated withlistingas a World Heritage aswell asislands thatare Queenslandnationalparks. Only1percentofthe park, oftheState marine parts Reefisa The Great Barrier World Area. Heritage The World Area Heritage covers theCommonwealth and Heritage management assessment andapproval requirements ofboththe on,Commonwealth within,orimpacts land. environment isundertaken generallywhere theactivity The communities, species, environment listed themarine migratory withinCommonwealth waters andthe valuesof matters heritage include theworld World listed Listproperties, threatened Heritage speciesand assessment andapproval bytheAustralianfor GovernmentMinister theEnvironment andHeritage. Such Park)Marine having asignifi ona cantimpact ‘matter ofnationalenvironmental signifi cance’ may require before (withinoroutsidethe of theactivity grantingactivities UndertheEPBCAct, suchapermission. ParkMarine require from permission theAuthority. isrequired The Authority impacts to assessthelikely Under the force oftheEPBCAct. into beenaddressed andduplicationinsomeareas, sincetheentry complexity whichhasonlypartially aff whether thespeciesandactions Act 1980 which hassimilarprovisions,ofthe appliesupto byvirtue thelowwater mark relation to thisrole. Under theQueensland can therefore applyto thesame activity. Act 1997 ParkReef Marine andadjacentcoastcatchment areas. addition,theQueensland In Protection Agency. adjoiningtheGreatThis would park withintheState Barrier applyto marine activities signifi ontheenvironment cantimpact require assessmentandapproval bytheQueenslandEnvironmental To address thisduplication,the well-being,community economicdevelopment andtheprotection ofthenaturalenvironment. foundation isto balance purpose ofQueenslandplanninganddevelopment assessmentlegislation. Its process where multipleassessmentandapproval requirements arise. streamlining ofassessmentandapproval requirements, for example, through useofasingleassessment requirements have largely beenaligned andprovision withthoseoftheEPBCAct madefor the

5 1 . This meansthatdiff hasimplicationsfor coastaldevelopment regulation. The Great BarrierReefMarinePark Act 1975 Environmental Protection Act 1994 Great BarrierReefMarinePark Act 1975 ering regulatory requirements regulatory ering canapplyto thesamespecies, dependingon Great BarrierReefMarinePark Act 1975 ecting it are within or outside the Marine Park. itareecting withinoroutsidetheMarine This creates regulatory , most activities thatmay have withinthe , mostactivities animpact Great BarrierReefMarinePark Act 1975 Great BarrierReefMarinePark Act 1975 , activities within Queensland territory having a withinQueenslandterritory , activities to protect andhistoric natural, Indigenous provides littlerecognition orguidancein Review of the the of Review Integrated Planning Act 1997 assessmentandapproval Great MarinePark Reef 1975 Barrier Act Coastal Waters (StateRights) Integrated Planning ontheotherhand, and the EPBC Act andtheEPBCAct forms the 112/9/06 10:40:04AM 2 / 9 / 0 6

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Great Great Reef Environment Environment ort can be quite and 2003 Zoning Plan restrict Plan and 2003 Zoning – which regulates the discharge of discharge the – which regulates The Authority works c management system. Guidelines for Fresh and Marine Water Quality Water and Marine Guidelines for Fresh the adjacent to catchments pollution in the use source – which regulates the dumping of wastes at sea the dumping of wastes – which regulates . Diff set out in a range Barrierecting are the Great Reef Marine Park Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great and streamline regulatory requirements, for example, through delegation through example, for regulatory and streamline requirements, – which protects the heritage – which protects and historical value of shipwrecks. . – which regulates the construction of installations at sea, such as pontoons, the construction at sea, such as pontoons, of installations – which regulates Environment Protection (Sea 1981 Dumping) Act Protection Environment Sea 1987 Installations Act platforms and fl oating hotels and fl platforms 1983 Ships) Act from of Pollution of the Sea (Prevention Protection pollution such as oil, toxic chemicals and waste from ships from chemicals and waste toxic pollution such as oil, 1976 Act Historic Shipwrecks 2 5

2000. Polluting activities may also trigger the assessment and approval requirements of the activities requirements trigger also may the assessment and approval 2000. Polluting Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection means such as land-use planning and vegetation by Queensland through BarrierGreat Reef is regulated voluntary under the as through stipulated such as those as well measures management regulations, restrictions traffi and a vessel discharge separation schemes, Protection against pollution from ships is provided by Commonwealth and Queensland legislation legislation and Queensland Commonwealth by ships is provided pollution from against Protection the Great to is also provided protection Special of pollutants and waste. the discharge prohibiting under the International as a Particularly Sea Sensitive Area MaritimeBarrier recognition Reef through of the Sea by Ships (known of Pollution the Prevention for International Convention Organization’s Barrier stringentThe Great Reef’s allows more status as a Particularly Sea Sensitive Area as MARPOL). compulsory such as measures traffi example through pilotage, for management of shipping in the area, necessary, ships and where Maritime pollution from closely with the Australian Authority monitor Safety to pursue legal action.to Water Quality Protection Plan Quality Protection Water polluting and potentially polluting activitiespolluting and potentially within the Marine a Such activities Park. generally require activities marine outside the Polluting impact assessment by the Authority. permit and environmental Protection licensing by the Queensland Environmental environment through regulated parks are quality by water is guided objectives In by the Australian established regulation both cases, Agency. and Conservation Environment Council and New Zealand Fisheries management Fisheries management arrangements aff Fisheries of Commonwealth and State legislative measures and encompass fi sheries management, environment sheries management, environment and encompass fi measures legislative and State of Commonwealth coastal and and State Commonwealth c is also specifi There and biodiversity conservation.protection shery from basis fi shery-by-fi managed individually on a sheries are fi marine Commercial park legislation. on the Marine species perspective. areas parks and protected both an economic and a target/non-target shing eff fi Commercial basis. and area managed on an ecosystem broadly are other hand, across a range fi sheries and thus fi a range of sh across shers often hold a variety of licences and mobile as fi of ecosystems. Other Commonwealth legislation Other Commonwealth and in the areas applies within In legislation the EPBC Act, a variety addition to of Commonwealth the Marinesurrounding including the: Park, • • • Pollution and water quality water and controls Pollution may of a number of pieces of legislation the requirements where is another area prevention Pollution the under Requirements apply. • Measures have been put in place in relation to the above legislation to minimise duplication with the to legislation the above to relation been put in place in have Measures Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park the Authority. responsibility to of approval d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Commonwealth assessmentunderthe • • protection of the ecosystem and conservation of biodiversity underCommonwealth ofbiodiversity protection and/orState oftheecosystem andconservation • Offshore Constitutional Settlementandprovided for bythe Park, asagreed ReefMarine withintheGreat undera1995Queensland managesallfisheries Barrier State, Commonwealth orjointmanagementofthecommercial fi to beeconomicallysustainable shery • The areas onfi ofmanagementandregulation thatimpact are sheries as follows: Fisheries underQueenslandcontrol are managedunderthe Strait Regional Authority. theAustralian comprising andQueenslandgovernmentsthe managed byajointauthority Torres Australian Fisheries Authority. Management The Torres Park oftheMarine is StraitFisheryto thenorth ParkSea Fisheryto theeastofMarine ismanagedbytheAustralian Governmentthrough the Fisheries (EastCoast Trawl) ManagementPlan 1999 2005 Queenslandhadintroduced Fisheries Plans Management for three ofthefi ve major sheries—the fi There are 17commercial fiBy theendof Marine thatoperate Reef withintheGreat sheries Barrier Park. such aslicensingrequirements, equipmentlimits, size limitsandclosedseasons. resources. This ispursuedthrough thedevelopment ofFisheries Plans Management andinputcontrols andAboriginal and charter Torres StraitIslander. thesustainableuseoffi hasasitsobject The Act sheries the managementoffi sheries resources across thebroad rangeofusersfrom commercial to recreational, requirements ofthe All thecommercial fi Marine thatoperate inthe sheries areto theassessmentandapprovalPark subject Fisheries. othermajorcommercialthe two fiInshore sheries, theEast Coast Finfi shandEast CoastDive-Based Fishery and the management andotherrequirements undertheQueensland Park) ReefCoast (theGreat Marine park within theState are to Barrier coastmarine thezoning, alsosubject Coast Otter Trawl andCoral Fin Reef Fish hasbeencompleted. FisheryundertheEPBCAct Fishing activities are for aspecifi cperiod, generallythree years. Assessment ofthemanagementarrangements for theEast As manager of the Marine Park, the Authority underthe Park, theAuthority As manageroftheMarine includes theinshore net,pot,crabandbeamtrawl fi sheries. current Zoning Park Plan applyingto theMarine isthe whole oftheZoning Plan, Reefecosystem. sustainablemanagementofthewholeGreat Barrier The zonesthe various are commensurate withrealising ofthezone theobjectives and,withthe inconjunction scientifi cvalues, thatpresent as well asactivities aconflicting useofthe resource. in Activities permitted into accountbothtarget andnon-targetand habitatperspective, taking species, threatened speciesand offi considerstheimpacts Authority Marine inthe from shingactivities Park anecosystem, biodiversity the resources ofthePark (s. 32(7)(b)). Thus, inthedevelopment andimplementationofZoning Plans the development ofaZoning Plan isrequired theAuthority to minimisetheeff particular, In inthe (a)–(f)). the development ofZoning Plans (s. 32)andPlans(s. ofManagement 39(Y) for ecologically sustainableuse.opportunities through meetstheseresponsibilitiesThe Authority primarily a responsibilityto protect theenvironmental Park andcultural valuesoftheMarine andto provide

5 3 marine park legislation, park including the marine species(Partlisted 13ss. marine 208A,222A,245,and265) oncetaceans,and impacts listed threatened speciesandcommunities, speciesand listed migratory approval isrequired componentand/orthefi ifthere isanexport isin Commonwealth waters shery as to whether afi canbemanagedinasustainablemanner(Part 13A s. 303FN). Assessment and shery through inputcontrols includingeff Fisheries (SpannerCrab) ManagementPlan 1999 Environment Protection Conservation Act andBiodiversity 1999 ort caps, gearrestrictions, seasonalandspatialclosuresort Great BarrierReefMarinePark Act 1975 Environment Protection Conservation Act andBiodiversity 1999 , the Fisheries (Coral ReefFin Fish) ManagementPlan 2003 . Management Plans. Management are underdevelopment for Great BarrierReefMarinePark Zoning Plan 2003 Great BarrierReefMarinePark Act 1975 Fisheries Act 1994 MarineParks Act 1982 Fisheries ManagementAct 1991 Review of the the of Review ect of activities thatexploit ofactivities ect Great MarinePark Reef 1975 Barrier Act (Qld). providesThis Act for . (EPBC Act). Approvals (EPBCAct). . This area primarily has . The Coral . The .

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Recreational fi shing activities within the Marine Park shing activities and Queensland coast marine park within the generally do not Marine fi Recreational the activity is where is part a permit is required where a permit. of a tourist One circumstance require shing, example a charter the fi as distinct for boat. Intourist from the activity, activity, circumstance that a permit. require may sheriesactivities is and management that impacts of the Authority in regulation on fi The involvement particularly the Review, those A number of submissions to stakeholders. many for a point of contention shing activities and the marine servicesforward Authority’s put the industry, the view that with fi associated sheries management actions management duplicates by the Department and of the Environment in fi role Heritage under the EPBC Act and by the Queensland Government. regulation been subjectParkto shing activities have within the Marine Over period the 2004 fi to 1996 namely: legal instruments, under at least six separate • accredited by the Authority. This requirement was removed with the implementation of the removed was This requirement by the Authority. accredited 2003 Plan Zoning Reef Marine Park • • • • • protection, ictingfor ecosystem objectives both similar and confl These regulatory instruments can have agencies responsibility across with being separated protection sheries management and environment fi the and jurisdictions. it is atypical for Government has responsibility In that the Australian particular, sheries fi of the Marinemanagement and protection responsibility for while Queensland has separate Park, 9 of this report, detail in Chapter in the in more is considered This issue management in the same area. context the functions of of the Authority. Use (Light Blue) Zone to have a Management Plan made under the a Management Plan have to Use (Light Blue) Zone Under the 2003 Zoning Plan, a permit is required to undertake fi shing in a zone where it is not normally zone where in a shing undertake to a permit is required Plan, fi 2003 Zoning Under the Authoritygranting a permit, the must sheries activities. Before dive-based as for fi as well allowed, undertake assessment of the impacts an of the activity. In Section was made in 4.3.2 of the 2000, provision d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:40:05 AM ect ecton 1 July 2004 as the primary came into eff came into workable stakeholders achieve to erent arrangements that Preface A3 Preface 13 erent stakeholders, the development and implementation of the Representative Areas Areas Representative and implementation of the stakeholders, the development erent Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great 6 5

The Representative Areas Programme and the associated development of the 2003 Zoning Plan drew drew Plan of the 2003 Zoning development and the associated Programme Areas The Representative were there Broadly, stakeholders deal of comment from making the Review. a great submissions to the Representative two stakeholders countervailing many considered On the one hand, perspectives. cant conservation an example of environmental achievement, be a globally signifi to Programme Areas Authority the considered group This c underpinning. scientifi with robust leadership and an initiative particularly of the undertaking, well, the size process given and that the had handled the rezoning Authority constructively had engaged with diff on balance, that were, The stakeholder groups both economic and conservationaccommodated needs. tourism shipping and maritime included the industry, safety and its outcome ed with the process satisfi and some sailboat operators conservation the diving industry, groups, c community, the scientifi interests, local community groups. 13 6.2 the Review about the to Submissions Programme Areas Representative 6.1 Introduction The conservation the This for planning instrument Barrierthe Great and management of Reef Marine Park. within a single all 33 sections of the Park by integrating of the Marine the establishment completed Park incorporated during 2000 the 28 new coastal areas for zoning plan and provided zoning comprehensive an initiative Programme, Areas the Representative also implemented Plan The 2003 Zoning and 2001. and conserve‘to protect Barrier the biodiversity within a network of the Great Reef ecosystem which aimed zones’. of highly protected it eff that gave Plan and the 2003 Zoning Programme Areas of the Representative The development in the Marine zones Park the period of highly protected 2003. It place over 1998 to the area took increased 344 400 square covers that the Marine 5 , 6 and 7). Given Park 33 per cent (Figures 4.5 per cent to from uses and competing alternative kilometres, extends along 2 300 kilometres many and has of coastline, diff and many 6 Programme Areas Representative The cant scale. was an undertakingProgramme of signifi as an has been acknowledged, and internationally, both nationally of the Programme The outcome conservingimportant to approach of an ecosystem-based in the implementation achievement marine c and Scientifi Nations Educational, (United include the UNESCO it has received Awards biodiversity. WWF Fund) (WorldWildlife 2005, the Prize Environmental Man and the Biosphere Organisation) Cultural 2005 and an award Ministerial InstituteGift the Earth 2005, the Planning of Australia to Prize Award ed with the was satisfi Not everyone, however, Foundation. the Banksia Environmental in 2004 from had that the rezoning Some stakeholders perceived Programme. Areas of the Representative outcome had lacked that the process transparency and that the Authorityno basis in science, had actively worked against their interests. in which it was and the way Programme Areas looks in detail at the Representative This chapter Itconducted. public consultation and examines the science and policy the planning process, basis, in the rezoning considered were in which user interests The way communication, and stakeholder views. The chapter as a whole. the Park a series for of maps showing outcomes through is illustrated process one area for developed were proposals how zoning concludes with a case study that shows at a local level of the Marine Park. d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d of Great BarrierReefMarinePark zoning implementation after Figure 6: the of Great BarrierReefMarinePark zoning before implementation Figure 5: the

5 7 33.8% 1.4% 77.9% 28.2% Great BarrierReef MarinePark Zoning Plan2003 Great BarrierReef MarinePark Zoning Plan2003 0.1% 4.6% 0.2% 0.01% 0.1% 16% 0.6% 1.5% 2.9% 15.2% 33.3% 0.05% Review of the the of Review is inFigure7. permitted ineachzone A guidetoactivities is inFigure7. permitted ineachzone A guidetoactivities General Use-33.8% Habitat Protection-28.2% Conservation Park-1.5% Buffer -2.9% Scientific Research-0.05% Marine NationalPark-33.3% Preservation -0.2% Unzoned -1.4% General Use-77.94% Habitat Protection-15.2% Conservation Park-0.6% Buffer -0.1% Scientific Research-0.01% Marine NationalPark-4.6% Preservation -0.1% Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:05AM 2 / 9 / 0 6

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G B R i n t e r n a l s f i n a l . i n d d perceptions thattheinformation wasusedto provided closefavourite bystakeholders to theAuthority • perceptions thatthere hadbeeninconsistent applicationofground rules, lackofnaturaljustice, andin • perceptions feedback failedto provide thattheAuthority incaseswhere adequate explanatory specifi c • for for inadequate arrangements making consultationinsomecasesandtimelinestoo short • lackofscientifi cbasis, or ‘poor science’, for theRepresentative Areas Programme and for specifi c • abouttheweighting usedindecisionmaking offactors lackoftransparency • factors inadequate considerationofsocio-economic • abouttheprocess unmanagedexpectations andachievableoutcomes • perceptions andintent thattheobjectives oftheRepresentative Areas Programme were notclearly • The ReviewPanel heardrepresentations arangeofstakeholder inthisregard, elementswere: ofwhichkey suppliersandland-basedfiand tackle enterprises. shprocessing andmarketing commercial fi shinginterests onassociated land-based businessessuchasboatyards, andtheimpacts bait expressing didsolargely inrelation suchconsiderabledissatisfaction to thetreatment ofrecreational and againstthem. worked andwasnotonlybiasedbuthadactively accountability lacked The stakeholders the rezoning process andquestionedthescience behindit. This group considered thattheAuthority On theotherhand, agroup withstrongly ofstakeholders heldviewsexpressed great with dissatisfaction supported and habitats of key species preserved. speciespreserved. andhabitatsofkey supported This helpsto ensure ofthe thatthehealthandintegrity biological communitiescanbebetteras theyare maintained, commonlyknown, ecological processes ecosystems ofplantsandanimals. protectingclimatic conditionsandcharacteristic these By ‘bioregions’, representative examplesofalltheareas Reefwithsimilarenvironmental, intheGreat Barrier physical and The overarching goaloftheRepresentative Areas Programme wasto ensure theadequate protection of ProtectedMarine Areas andenvironmental management ecosystem (ANZECC 1999). components andbyintegrating across withinadefi planningandmanagement activities sectors ned byidentifyingandaddressingmanage humanactivities theirdirectandindirecteff of anecosystem-basedBoth theseapproaches approach are managementthatseeksto to marine part arecollecting prohibited. zones, whichhumanscancontinuetosuchasfi access, activities butwhere extractive shingandmarine Protected Areas shouldbesetasideas protected’‘highly referred often sanctuaries, marine to as ‘no-take’ processes andprotect biological (ANZECC diversity 1999). ofallMarine The secondisthataproportion systems, andestuarine tocontribute ofmarine ecologicalmaintain long-term viability Programme. The fi rstisthatofestablishing a representative Marine system of Protected Areas to Representative Areas Programme Two fundamentalapproaches environment to marine theRepresentative protection underpin Areas underpinningthe Science andpolicy 6.3

5 9 fi shing areas. some cases, politicalinterference zoning suggestionswere notableto beaccommodated submissions zoning decisions communicated Review of the the of Review Great MarinePark Reef 1975 Barrier Act ects onecosystem ects 112/9/06 10:40:22AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:22 AM (GBRMPA 1994). This 1994). (GBRMPA sheries Environment Protection and Biodiversity Protection Environment , which requires ecologically sustainable use of natural resources—in this case the resources—in sustainable use of natural ecologically , which requires 25 Year Strategic Plan for the Great Barrier Reef World Heritage Area Barrier Reef World for the Great Plan Strategic 25 Year spring are not confi ned to the ‘no-take’ areas and can move into adjoining areas, creating a ‘spill- a creating areas, adjoining into and can move areas ‘no-take’ to the ned not confi spring are ect that can help replenish fi sh stocks in areas where fi shing is permitted. Studies have shown that fi shown have Studies shing is permitted. where in areas stocks sh ect fi replenish that can help 0 6

Science and policy developments at length by scientists and policy been debated have makers Areas The principles behind Marine Protected deterioration of reefs 5), with one of the drivers being a steady the past two decades (see Chapter over parts in many Marine ocean ecosystems and associated of the world Sciences Association (Australian 2002, GCRMN 2000, 2004). In 1988, the IUCN (World Conservation establishing a Union) recommended wise restoration, the protection, for provide to Areas of Marine system Protected worldwide representative This was supported understanding and enjoyment of the marine heritageuse, of the world in perpetuity. in 1992 and 2003. In 1995, a joint report Barrier Congress by the Great Reef Marine Parks World by the for the ed priority areas ConservationWorld Union (1995) identifi Bank and the World the Authority, Park across Areas of Marine system Protected establishment and management of a global representative Barrier including the Great Reef. of the world, 18 marine regions Barrier within the Great Reef was foreshadowed samples of all bioregions of representative The protection in 1994 in the and local governments in conjunction State Government, by the Australian was developed Plan Strategic in highly protected coral reef areas population densities of animals, including fi sh, can signifi cantly increase cantly increase sh, can signifi including fi population densities of animals, areas coral reef in highly protected 2000). Williamson & Roberts (Clark years 1989; Polunin 1993, 1994; four two a period to over of around and sustainable fi Areas Marine Protected sh stocks, primarily fi aimed at managing discussed above, management is not, as Ecosystem-based fi sheries Ecosystem-based sheries management measures. but is nonetheless closely interlinked with fi all aspects shing on of the marine impact that looks at the approach of fi management is a recognised habitats species, by-catch protected including the impact species, species, on the target environment, and communities. an example of ecosystem- Fishery provides Trawl Management Otter of the Queensland East Coast shery under the accredited has been This fi based management. 1999 Act Conservation fi shery (DEH 2004), in considering it meets the whether criterion reportThe assessment for this shery. fi shing operations on the ecosystem impact in a manner that minimises the of fi ‘conducted of being sheryPark, within the Marine proportion‘the location of a large of the fi that (DEH 2001), notes generally’ fi shery this in meeting aids the values, ecological to protect implemented cant closures which has signifi whether the of be an investigation the assessment report that there recommends Furthermore, guideline’. shery and whether the fi generally from the ecosystem protect enough to are closures Marinecurrent Park required. are outside the Marineadditional closures Park complement and complete be seen to can therefore areas of protected system A representative which in turn complement the sustainable management of the fisheries measures, management as a whole. ecosystem ecosystem as a whole, as well as its component parts, is enhanced and maintained. A healthy ecosystem is ecosystem component parts, as its healthy A well as and maintained. is enhanced a whole, as ecosystem external poor water from impacts change, such as climate recover readily can more and to resilient more sh and oil spills. cyclones, crown-of-thorns starfi quality, social, can deliver areas of protected system representative a ts, benefi In environmental addition to reliant on healthy is highly for example, BarrierTourismto the Great Reef, ts. benefi cultural and economic can areas ‘no-take’ as t, benefi can also potentially stocks Fish and pristineecosystems environments. fi sh and fi Adult sh. young and nursery of development sh breeding allow unhindered and areas fi protect their off eff over’ d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d economics, concluded: andthesescientistscollectively together for thefi rsttime eldssuchasecology,fi geology, palaeontology, oceanography, climatology and inaForumparticipate entitledManagingCoral Reefs intheFace ofGlobalChange. This Forum brought funding from invited theQueenslandGovernment, 15scientistsfrom theUSA,Europe andAustralia to 2002,theCentre October forIn Coral atJamesCook inQueensland, ReefBiodiversity University with fi sheries’ (American Association for the Advancement oftheSciences2001). to beahighly eff intheUnited declared States reserves reserves ofAmerica marine onmarine scientistsandexperts marine (State waters), from 10to 34percentprotection. Government announcedanincrease inthe ‘no-take’ Park Coral ReefMarine zones intheNingaloo ReefRepresentativeimplementation oftheGreat Barrier Areas Programme, the Western Australian 20 percentofExclusive Economic Zones andthehighseasby2020. scientistscalledformarine anincrease inthenumberandeff A substantialbodyofscientifi In 1998,some1600international thisapproach. c opinionhasalsosupported toDevelopment establisharepresentative Protected system ofMarine by2012. Areas withinitsjurisdiction This wasfollowed bytheAustralian Government’s commitmentatthe2002 World SummitonSustainable Marine Protected Areas:AGuideforAction by Australian Governments Council (ANZECC)released its Conservation Protected Areas inAustralian waters. 1999,theAustralian territorial andNewZealand In Environment and ecosystem-based approach protection to andto marine anationalrepresentative system ofMarine 1998theGovernmentannouncedAustralia’sIn Policy, Oceans inwhichitcommitted to an intotal.60 stakeholders a jointprocess withanindependentChairperson. The Plan wasdeveloped inconsultationwithsome commercialwith tourism, andrecreational fi shing andscientistsin representatives, conservationists 15 International Forum International on Threats to Coral ReefBiodiversity, Townsville 2002 14–19October 15 14 off Reserve Marine the Galapagos thefiIn eld, theintroduction of ‘no-take’zoning to implement20percent areas wasannounced for range from 20to‘no-take’. 50percentofthearea neededto beprotected as management to found ecosystem protection andahighproportion thatto achieve a theseobjectives among reserves. The publicationscovered abroad ranging rangeofmanagement objectives from fi sheries representation, biodiversity minimisation ofby-catch, andconnectivity maintenance ofgeneticvariation infi assessedincluded themanagementofrisk The objectives sheries, maximisationof yield, sheries fi is provided atAppendixI. The estimates were developed boththrough modellingandfi eldstudies. ormanagementobjective.relative Areference to theconservation listofsome20suchpublications ‘no-take’ publications ontheestablishmentof zones soughtto estimate thelevel ofprotection required At thetimeRepresentative Areas Programme wasunderdevelopment, anumber ofscientifi c ofprotection Extent

6 1 Troubled Waters: ACall forAction not justoffi sh,butofentire reef ecosystems for sustainability. 30–50percent ofreefszones, shouldbesetasideasno-take forlong-termprotection, andeconomicbiodiversity value…We needtobetterprotect foodwebs andkey groups…as insurance centuries. thesetrends If continue, coral reefs willdeclinefurther, leadingtoaccelerating lossesof ... over-harvesting andpollutionhave hadmajornegative impactsoncoral reefs over thepasttwo ective toolective to helpalleviate the ‘declining state oftheoceansandcollapsemany , statement of 6 January 1998, United Nations International 1998,United NationsInternational , statement of6January Year oftheOcean the coast of Ecuador in March 2000. In late 2004,following thecoastofEcuadorinMarch 2000.In the Strategic Plan ofAction fortheNationalRepresentative Systemof

. 15 ectiveness of Marine Protected ofMarine ectiveness Areas to Review of the the of Review , which included the Great Barrier Reef., whichincludedtheGreat Barrier 14 In 2001,astatement by161leading In Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:22AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:23 AM Great Barrier Authority Great Reef Marine May 1999 Park (Part V ss. 32 and 33) sets out the minimum statutory 32 and 33) V ss. obligations (Part provides for the Authority to amend or revoke a zoning plan at any plan at any a zoning the Authority amend or revoke to for provides In accordance with the key principles behind representative Marine Protected Areas, these were these were Areas, Marine In with the key Protected accordance principles behind representative 16 ect Barrier on the Great Reef Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great themselves eff for the purposes of scientifi c research. c the purposes scientifi of for An Overview Areas Program Authority Representative Barrier Reef Marine Park of the Great 2 6

stated as stated • population and genes habitat, species, diversity of the ecosystem, maintaining biological • and function undisturbed evolve allowing species to • disasters against human-induced margin safety an ecological providing • or repair species or habitats can recover which threatened base from a solid ecological providing • and systems. processes maintaining ecological guidelines to develop Committee c Steering In 2000, the Authority established an independent Scientifi had expert The Committee representation Programme. Areas decisions in the Representative zoning for Cook c and James Organisation), Industrial Research Scientifi which included CSIRO (the Commonwealth 16 Objectives and operational principles Authority rst made public by the fi were Programme Areas The underlying objectives of the Representative in 1999. Legislative requirements for Great Barrier Reef zoning plans Reef zoning Barrier Great for requirements Legislative The 6.4 of the and implementation Development Programme Areas Representative as the Marine soon as practicable has been declared As Park. plans for after an area zoning developing for plans must have Zoning part that area. plan for a zoning of the Marine the Authority Park, must prepare objectives: the following to regard • conservation Barrier of the Great Reef • Barrier use of the Great Reef Region but allow reasonable the Marine protect to Park regulation • Barrier minimise their so as to in the Great Reef Region of activities regulation that exploit resources time through the same process as specifi ed in ss. 32 and 33. ss. ed in as specifi the same process time through Before preparing a zoning plan the Authority must publicly state its intention to do so through a public do so through to Authority plan the its intention state a zoning must publicly preparing Before notice inviting within a period of not less than one month. Public representations notice and must invite the made before a draft plan. Representations to zoning in relation is also required representations after consideration of the The Authority, due consideration by the Authority. must be given due date to the to accept it or and submit it Minister the plan accordingly t, alter can, if it thinks fi representations accept the plan as soon as to The Ministerrequired is further it for consideration by the Authority. refer the plan. If to practicable or after alterations Minister the after receipt, before the plan makes to alterations he or she must also table a report on the amendments. Parliament, it goes to within both Houses of Parliament They must be laid before disallowable instruments. plans are Zoning disallow passed is no motion to if there ‘passed’ The plan is acceptance of the plan. of the Minister’s 15 days ed in the plan. Section37 of the specifi on the date force The plan comes into of tabling. within 15 days 1975 Act Barrier Reef Marine Park Great • and enjoyment by the public appreciation Barrier reservation of the Great Reef for of some areas • Barrier preservation undisturbed of the Great Reef in their natural state by man except of some areas d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d These 11 principles, basedonthebestavailable scientifi cinformation ofthetime, to inform the zoning process. andFisheries. Industries ofPrimary and theQueenslandDepartment The Committee developed asetof Science, of theUniversity ofMarine Institute Western Australia, QueenslandParks and Wildlife Service University, theCooperative Research Centre for Reef theGreat Barrier World Area, Heritage theAustralian Table 6:Representative Areas Programme milestones following publicfeedback. Both setsofOperationalPrinciples were refi andwere madepubliclyavailable bytheAuthority further ned public understandingandacceptanceof ‘no-take’ areas. activities, recognising socialcostsandbenefi communities, between andmaximising tsandspatialequity areas withhuman ofno-take whichincludedsuchthingsasmaximisingcomplementarity (Appendix J), Committee defi nedasetof Coordinating Council, theQueenslandParks and andthe Wildlife Service World Wildlife Fund. This Tourism, theAustralian Centre NationalUniversity for Resource andEnvironmental Studies, theAboriginal of Association, theAustralian Commission, JamesCook Heritage Department University Seafood Industry andFisheries, Industries theQueensland with representationofPrimary from theQueenslandDepartment At thesametime, anindependentSocial, EconomicandCultural Committee Steering wasestablished, environments andto protect biophysically specialoruniqueplaces. toof 20percenteachhabitattype, represent ofplantsandanimalsacross thediversity therangeof

Mid-1998–early 2002 Internal commencement in the Great Barrier Reef Marine Park Authority; Park ReefMarine commencementintheGreat Authority; Barrier Internal 2002 Mid-1998–early 15 April 2002 Declaration of last remaining section of Great Barrier Reef Marine Park, theFar ReefMarine oflastremainingGreat Declaration section Barrier 2 June2003 7 August 2002 7 May 2002 2002 15 April 25 March 2004 Announcement by Minister for AnnouncementbyMinister theEnvironment that2003Zoning andHeritage tabledin analysisreports, 2003Zoning Plan, accompaniedbysocio-economic 1 July2004 Governmentendorsestheproposed 2003Zoning Plan 25 March 2004 Additional stakeholders consultationround withkey 2003 3 December 2003 Mid-November October–November 2003 4 Aug 2003 2 June2003 November 2005

6 3 Biophysical Operational Principles

Social, Economic, Cultural andManagementFeasibility Operational Principles formal communicationsstrategy, briefi stakeholder informal publicconsultations;key ngs; technical workshops, Great BarrierReefMarinePark Draft Zoning Plan CP1 closed–10190submissionsreceived Public Noticeto prepare Zoning aDraft Plan First Formal Participation Phase Community (CP1)commencedwithgazettal of Section Northern newsletters Great BarrierReefMarinePark Zoning Plan 2003 Plan would comeinto force on1July2004 MP the HonDrDavid Kemp Parliament for byMinister theEnvironment andHeritage, CP2 closed–21500submissionsreceived Second Formal Participation Phase Community (CP2)commenced –Consultation Draft Report Zoning Decisions on Great Barrier Reef Marine Park website ReefMarine on Great Authority Barrier ontheGreat BarrierReefMarineParkReport Zoning Plan 2003 (Appendix H)sought,amongotherthings, to protect aminimum Representative AreasProgram Update Review of the the of Review entered into force publiclyreleased, alongwith Great MarinePark Reef 1975 Barrier Act released quarterly quarterly Basis for

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6 0 / 9 / 2 112/9/06 10:40:23 AM ort, on) and considers liations, user groups, groups, user liations, location, affi such as geographical groupings erent was used to integrate the layers and sets of information, for example, on bioregions, fi shing eff fi on bioregions, example, for and sets of information, the layers integrate was used to 17 constraints (e.g. existing protected areas, popular fi shing areas). The software then suggests an optimal network. shing areas). popular fi areas, existing protected constraints (e.g. 4 6

expertise or points of view. the Draft inform Zoning and data to of additional information a wide range The Authority also gathered fi interview shing data, logbooks and diaries, recreational shing logbook data, fi including commercial Plan, within the sheriesMarine closures fi State permits, zoning, data, existing Marineand questionnaire Park Title claims, Native moorings and anchorages, boat ramps, and waters, of adjacent land zoning State Park, minimum protection levels and special and unique sites, to produce ‘optimal’ networks of ‘no-take’ areas. areas. ‘no-take’ networks of ‘optimal’ produce to and special and unique sites, levels minimum protection and sectoral expertise, with both geographic then within the Authority, planning team A dedicated including economic by considering additional information proposals ‘optimal’ ned these and refi augmented knowledge local submissions, in the public and other feedback. views expressed and social principles, was scanned consultation processes the two formal from Each of the nearly submissions received 32 000 was then information This a database. into entered ed and the contents codifi analysed, by the Authority, be sortedable to in diff and recalled 17 of parks (in terms of amounts of protecti Used in the design and reserves, this software outcomes takes account desired into The 2003 Zoning Plan – allocation of zoning 2003 Zoning The diversityDuring of the Great and physical 1998 and 1999, the Authority began mapping the biological data were and oceanographic Barrier biological Reef Marine than 40 sets of biophysical, More Park. in consultation with expertscompiled and, and community distinct 70 biologically stakeholders, habitat zoning decisions. for Park as the fundamental basis the Marine ed across identifi were ‘bioregions’, types, or on the information collate was to Plan the DraftThe starting of developing Zoning the process point for reserve for cally developed software called MarXan, data. Computer specifi with other available bioregions design, The process process The of six years a total over which stretched process was a comprehensive Marine of the Park The rezoning and during the before publicised were which 10 distinctive phases, planning were There (1998–2003). Plan, Zoning Phase 1, Draft Formal Public Input cation, Selection, Identifi cation, Review, Classifi process: Ministerial and Monitoring. Plan, and Parliamentary Zoning Approval, 2, Final Phase Input Public Formal was particularlyformalnal stages the process only 18 months between with the intense, In the fi Plan in Zoning nal 2003 of the fi in Mayin Parliament 2002, and the tabling rezone, to of intent gazettal a three-month over (CP1) occurred Community Phase Participation Formal The First December 2003. stakeholderthan the statutory submissions two months longer for providing 32(2b)). period, minimum (s. Authority The then had 12 months received. were 190 public submissions rst phase 10 During this fi The time Plan. Zoning the Draft formalto prepare consultation phases rst and second between fi the (CP2) was one month longer than the Community Phase Participation the Second Formal for allowed The Authority public submissions. in 21 500 statutoryphase resulted 32(8)) and this second minimum (s. and to Plan the Draft and amend review Zoning to analyse the submissions, months to then had three the draft In government. made to plan to submit the Plan this part some 94 changes were of the process, tourism for fi and 28 shing interests to accommodate (66 ect community and stakeholder preferences refl to and conservation reasons). numbers of stakeholders. the Authority with large met and consulted the process, Throughout it held over formal phase, rst During prior 2000 and 2001, the period consultations the fi to of informal In than 1 800 people. 2003, during 2002 and phases, consultation 140 meetings with more the two formal the Authority held a further 6 000 people. 500 meetings with over d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d peak bodiesandlocalFederal ofParliament. Members sectors. As thefi nal zoning proposals neared submission to briefiParliament, ngs werearranged forfi shing Zoning Plan to accommodate submissionsandrepresentations bythecommercial andrecreational fi shing thedevelopmentDuring ofthe2003Zoning Plan, more than66majorchangeswere madeto theDraft Biophysical OperationalPrinciples andtherezoning objectives. that would satisfytheneedsoffi shersas well asthose ofotherstakeholders,as well asthe respecting months, hadnumerous theAuthority exchanges withpeakfi shing to groupsreach solutions to try November 2003,and20debriefi ngsessions the were inJuneandJuly2004.During conducted nal fi heldatotal of360meetingswithfiThe Authority June1999and between shingstakeholders regular informal briefi ngs. received formal updates ontherezoning three-monthly process from staff seniorAuthority representation atboatshowsandfi shingexpos.Development Council TheQueensland Industry Fishing newsletters, radiobroadcasts,through industry briefi information mail-outs, events and ngsatindustry Association andSunfi sh,which represented recreational shers.fi alsocommunicated The Authority withpeakbodiessuchastheQueenslandSeafood contact Industry and presentations andface-to-face strategies itadopted includedregular briefi ngs to the Committees sheries-related Marine Advisory fi recreational fi shersanditbegan considerationofassociated communicationneedsin1999.formal The recognisedThe Authority for thatthezoning impacts commercial changeswould have and particular were released. the rezoning were widelydistributed, andseveral information sheetscoveringFrequently Questions Asked the planningprocess. Aroundsheetscoveringscientifi 40fact c, technical andplanningissues relating to called general public, bothbefore, theformal andafter consultationperiods. during Regularpublicnewsletters Throughout andthe theprocess, stakeholders maintainedregular theAuthority communicationwithkey Areas Programme. ownershipofthezoning outcomescommunity wouldto thesuccessofRepresentative becritical abeliefthatstrong Communicationinternal Plan articulated wasdeveloped in1999andittheAuthority andprovisionAuthority for oftherezoning wide publicconsultationwasanintegral process. part An involvement andstakeholder Close community intherezoning exercise wasregarded bythe askey Public consultation ontherezoning process6.5 data. areas surveillance shell collecting andCoastwatch aerial shipwrecks,places andhistoric Area usagedata,Cairns tourism and Whitsundays Plans ofManagement, Aboriginal and Torres StraitIslanderdatabasesfor theRegister oftheNationalEstate, heritage historic

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6 0 / 9 / 2 112/9/06 10:40:23 AM , refuting claims that claims , refuting An Overview of the GBRMPA Representative Representative An Overview of the GBRMPA TV ad campaign publicly released to accompany Draft Zoning Plan, giving giving Plan, Draft Zoning accompany to publicly released fact sheet distributed to counter claims that the Authority fact claims that the counter had sheet distributed to TV campaign – feedback on CP1; update on process; feedback on public comment; listed on public comment; listed feedback on process; on CP1; update – feedback – summarised key complementary available themes in public submissions; listed – outlined objectives, process, defi nitions, procedure for public input and procedure nitions, defi process, – outlined objectives, formal through on draft – sought public comment map of bioregions on basis of public – advised 9 fundamental changes occurring bioregions to existing outlined and their boundaries, cation of 70 bioregions – advised identifi Correcting Misunderstandings and Providing Facts about RAP about Facts Misunderstandings and Providing Correcting Great Barrier Reef – Let’s Keep it Great Barrier Reef – Let’s Great Correcting Misinformation Correcting GBR Under Pressure the Authority was targeting people’s favourite fi shing areas for closure; refuting claims of for closure; shing areas fi favourite people’s the Authority was targeting fi a sheries were management net reef line and inshore rming on the maps; confi lines’ ‘secret Queensland responsibility RAP Update 5 public documents available RAP Update 6 Plan the Draft to Zoning information DecisionsBasis for Zoning Report allocation zone for detailed explanations of reasons • • 17 RAP Information Sheets Barrier Great than 300 meetings along the • More Reef coast 29 000 explanatory 57 000 submission forms, brochures, • 76 000 maps, 2 100 CD-ROMs distributed than 500 media reports,• More 88 newspaper ads Australia) number; (63% from toll-free 35 000 hits on website • 2 000 calls to Areas Program RAP Update 1 timelines RAP Update 2 questionnaire shers, fi recreational including peak bodies, Over workshops rezoning, on attended 300 people Marine Advisory and Local tourism (LMACs) operators Committees Association, shing IndustryQueensland Seafood National Sportfi Australian Association, Reef conservation marine Advisory tourism industry Committees, groups, LMACs, Landcare, Barrier the Great Reef Consultative boat clubs, yachting and motor regional associations, and the Queensland Government Committee, RAP Update 3 copy and in hard on web feedback. available New maps RAP Update 4 zoning ‘no-take’ of protective levels 6 000 people • Over meetings with approx 200 formal centres sessions in 22 regional • Community information distributed • 33 000 submission brochures 38 000 hits on website number, toll-free • 4 000 calls to TV 100 newspaper articles over spots, • 60 radio spots,10 papers 20 regional 70 newspaper ads in • Approx • Zones locations of Green predetermined already • Assembly Legislative Parliament and Members of the for Queensland Members of ngs • Briefi 6 6

October 2002 2003 March June 2003 June–August 2003 (CP2) May 2000 2000 September October–December 2000 2001July 2000–July sh, 1 500 stakeholders, including Sunfi The Authority with over 140 meetings held over 2001 March December 2001 2002 May–August (CP1) 2002September Release of May 1999 booklet of release the public with advice to Formal

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G B R i n t e r n a l s f i n a l . i n d d The Authority madeaconsiderableeff The Authority was alsointroduced. management controls were introduced byQueensland, andmirror zoning park oftheState coastalmarine The 2003Zoning Plan changesforPark theMarine occurred atatimewhennumberoffi sheries a balancedoutcome. viewswithenvironmentalstakeholder objectives, OperationalPrinciples andotherrelevant datato achieve team, aidedbyspecialistsoftware, to integrateanalysed allpublicsubmissionsandappointed anexpert wasextensive,the Authority took andalarge place. numberofmeetingswithstakeholders The Authority approaches. informationThe volume ofdocumentationandamountweb-based madeavailable by The development oftheRepresentative Areas Programme drew scientifi onwell-considered candpolicy stretched additionaldimensions. to accommodate theseimportant inhandlingthesubmissions.work The timeframe, process andresources however were fi nite and were that went beyond thehighlyprotected ‘no-take’ zones. increased thevolume ofanalytical This further The 2003Zoning Plan brought aboutanoverall increase inthelevel ofprotection Park across theMarine their expectations. perceivedstakeholders thattheprocess didnotprovide suffi onthezoning processstakeholders abalancedoutcome. withtheaimofdelivering However, somekey Review Panel madeextensiveeff considersthattheAuthority process andthere were thatallsuggestionscouldbeaccepted andimplemented. highexpectations The were large numbersofstakeholders With 32000submissions,engagedinthe actively nearly very of thefi inthelastsixmonthsofwhatwas asix-year nal2003 process.Zoning Plan, wasundertaken was noprecedent ofscale, interms scopeandprocess. component,thedevelopment The mostimportant Barrier ReefMarinePark Zoning Plan 2003 process andkey issues The development oftheRepresentative Areas Programme anditsimplementationthrough the Synopsis oftheRepresentative Areas Programme6.6 their businesses had not been adequately taken into account. Some of these stakeholders expressed intotheir businesseshadnotbeenadequatelyaccount. Someofthesestakeholders the taken downstream oftheZoning alsoconsidered industries thatthesocialandeconomic impacts Plan on Commercial andrecreational fi andthoseinvolved shingstakeholders intheassociated upstream and time thefi nal2003 Zoning Plan wastabledin Parliament. explanation orrationalefor andfi thedraft changesbetween nal zoning planswaspublicly available atthe againstthemto closefavourite worked actively fi shinglocations. Thisviewwasheightened becauseno decisions onalternative orcompetinguses.considered had Someofthesestakeholders thattheAuthority thatthere andaconcern wasnotaclearprocessAuthority individualresource for making allocation considered theengagementandoutcome biasedagainstthem.Anumberexpressed mistrustofthe in recreational andcommercial fi shinglargely heldstrong viewsthattheirconcerns were unheard and Programme ornotmadeavailable inaway thatwasclearandcompelling. waseitherlacking Stakeholders The perceptionswere ofsomestakeholders thatthescientifi cevidence Representativefor the Areas November 2005(GBRMPA 2005a). equivalent debriefi ngdocumentontheoutcome ofthe nal2003 Zoning Planwasnotfi availableuntil While areport, published Biophysical, andSocial, Economic, Feasibility Cultural andManagement OperationalPrinciples. soughtto achieveAuthority mutuallyacceptableoutcomes wherever to the possiblewhilstadhering approach ofengagementwithdiff were heard andvaluedwere largely satisfi edwiththeoutcome. The relied onaniterativeAuthority groups, stakeholder compromise outcomes key didfeel between andmany stakeholders thatthey

6 7 Basis forZoning Decisions erent to develop stakeholders thefi nal, 2003 Zoning Plan. The ort to balancediff ort was an extensive undertaking byany measure, for whichthere wasanextensiveundertaking , (GBRMPA Zoning 2003a)wasissuedwiththeDraft Plan, the ering stakeholder requirements stakeholder ering andto achieve cient transparency and accountability to meet andaccountability cient transparency orts to achieve eff orts Review of the the of Review Great MarinePark Reef 1975 Barrier Act ective engagementwith ective Great 112/9/06 10:40:23AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:24 AM Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Park Barrier Reef Marine Great Marine Park zoning prior July 2004 to zoning Marine Park Programme Areas duringDraft developed the Representative zoning nal under the fi Zoning of highest use by and the areas level, shing data, showing that, at an aggregate overlaid on fi Zoning fi shing activities relevant to closed outside areas remain largely shers fi commercial value to greatest Designated through security shipping, provides of access for Plan Illustrates that the 2003 Zoning Shipping Areas on based shers, fi used by recreational areas to relate closures Plan Shows how the 2003 Zoning shing diary data collected Government by the Queensland fi recreational Great Barrier Reef Marine Park Zoning Plan 2003 Zoning Park Marine Great Barrier Reef 8 6

Map 9 Map 10 Map 11 Map 16 Map 17 Maps 12–15

The following section presents a series of maps that show at an aggregate level how zoning evolved in the evolved how zoning level section a series of maps that show at an aggregate presents The following in which the way and illustrate Programme, Areas Barrier duringGreat Reef Marine the Representative Park for the zoning proposals nal the fi in reaching been considered various have uses of the Marine Park Plan. 2003 Zoning 8: Summary of maps Table 6.7 in the addressed user activitiesHow were view that the Zoning Plan had made their businesses marginal or uneconomic and that the high-level high-level and that the or uneconomic marginal made their businesses had Plan the Zoning view that in not makingawed extent the this of was fl changes Plan analysis of the Zoning economic aggregate apparent. problem shers fi and commercial with recreational that these views on engagement considered The Review Panel and socio-economic detailed examination, in particular warranted more Plan impacts as Zoning of the in regard zoning of the The development be locally very to these impacts in some areas. appeared intense of the socio-economic shing activities and the nature in analysis undertaken considered is therefore fi to report. 10 and 11 of this Chapters an overviewSection impacts and the respective 6.7 below provides at an of zoning of the evolution Section 6.8 examines at a local shing and on shipping. fi and recreational on commercial level aggregate with planning competing stakeholder interests integrated Programme Areas how the Representative level using the Capricornobjectives, Bunker as a case study. Region d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Map 9:Great BarrierReefMarinePark zoning priorto 1July2004

6 9 Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:24AM 2 / 9 / 0 6

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Map 10: Map 10: Plan June 2003 Draft Zoning Reef Marine Park Barrier Great d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Park Zoning Plan2003 Zoning introduced inJuly2004by the Map 11:

7 1 Review of the the of Review Great BarrierReef Marine Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:26AM 2 / 9 / 0 6

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Map 12: Map 12: and of Production Value Fishery Gross Trawl Otter East Coast Plan the 2003 Zoning d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d andthe2003Zoning Plan EastCoast Otter Trawl Fishery Vessel Monitoring System data Map 13:

7 3 Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:29AM 2 / 9 / 0 6

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Map 14: Map 14: of Production Value Gross Line Fishery East Coast Plan and the 2003 Zoning d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d andthe2003Zoning Plan EastCoast NetFishery Gross Value ofProduction Map 15:

7 5 Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:31AM 2 / 9 / 0 6

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Map 16: Map 16: Shipping Areas and Designated Ship reporting information Plan in the 2003 Zoning d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d a 7 Recreational fi Map 17:

7 7 shing diary data andthe2003Zoning Plan shing diary Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:34AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:35 AM ort and special sites, were reduced to avoid impact on trawl and impact and on trawl avoid to reduced were 18 the Queensland coast between Rockhampton and Gladstone line fi shing. line fi grounds. shing fi spanner crab and trawl shery. aquarium the impact fi reduce on the commercial and to the impact reduce on to in some submissions, as proposed was not extended, a bioregion, protects shery. the line fi fi shing. recreational and sheries, aquarium fi fi shing. line shing and commercial drift fi recreational 8 7

• in the southern Capricorn Zone further Bunker was moved important The Green Group avoid south to • public understanding of its location to help improve ed was modifi Zone Island Green West The North • and which complements tourism use of this area Island, Wilson surrounding Zone The Green • impacts line and reduce on commercial to Zone the Green from Mast Head Island was excluded • allow for to was substantially reduced Island Orange Zone Tree the One surrounding Zone The Green • reduce impactstourismto on use. gured Island was reconfi Heron around The Orange Zone 18 explanation of zoning. 7 for See Figure This section presents a case study that shows at a local level how zoning proposals were developed developed were proposals how zoning a case study that shows at a local level This section presents ve case studies that examined the fi considered Review Panel The of the Marine one area Park. for stakeholders and raised concerns where had about the process in areas proposals of zoning development the Capricorn of Bunker was chosen as a Region, The case study presented, level. at a local its outcomes The case study process. in which the Authority illustration of the way applied the zoning representative shing eff location, fi such as bioregion used, looks at the key that were sets information 6.8 in the development plan study of zoning Case Barrier Reef Great Region of the Bunker Capricorn and how competing socio-economicand how competing of and conservation in the development considered objectives were Plans. Zoning nal the draft and fi The Capricorn off Bunker is located Region in no other part and found the area unique to are of which three six bioregions, includes The area (Map 18). an import are The Capricorn habitat and Bunker of islands and reefs Group (Mapof the Marine 19). Park is partThe area of the turtles. turtle and hawksbill threatened green, species such as the loggerhead, for nesting sites. cant seabird and includes signifi Capricornia National Park Cays These include otter sheries operating in the Capricorn Bunker Region. important are fi There commercial proportionfi and a large shery, of the Queensland Spanner aquarium a commercial sheries, and line fi trawl spots popular holiday of the islands are Many shers. fi is also popular with recreational The area Crab Fishery. cantly. signifi increased numbers have visitor market In years, and tourism is an emerging in the area. recent the Capricorn cally about Bunker specifi commented Over Plan submissions on the Draft 1 150 Zoning to the Plan Zoning the Draft made from were cant changes Signifi areas. related or the surrounding Region by stakeholders provided in submissions result of the information as a Plan in this area Zoning nal 2003 fi and further In accommodate consultations with the users of the area. the major changes to summary, were: competing user interests • and Dark Blue Zones Yellow All boundaries of Green, d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Table 9:Case studymaps

Map 27 Map 26 Map 25 Map 24 Map 23 Maps 20–22 Maps 18–19

7 9 2003 Zoning Plan for thecasestudyarea issuesrefl stakeholder Key in ected nalchanges to2003 Zoningfi Plan inthesecondround raisedbystakeholders ofpublicconsultation concern Areas ofkey ZoningDraft casestudyarea Plan for Bunker Capricorn Areas identifi inthe asimportant edbystakeholders rst roundofpublicconsultation fi Data onfi shingGross Value of Production considered indeveloping the zoning Reef andnon-reef bioregions inthecasestudyarea Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:35AM 2 / 9 / 0 6

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Map 18: Map 18: scale on broad Region – bioregions Bunker Capricorn d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d a 9 Case studyarea –reef andnon-reef bioregions Map 19:

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Map 20: Map 20: Fishery Trawl Otter Commercial Coast – East study area Case 2001–2002 (GVP) of Production Value Gross average d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d a 1 Case studyarea –LineFishery Gross Value ofProduction data Map 21:

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Production data Map 22: of Value Fishery Gross Crab – Spanner study area Case Production d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d ofpublicconsultation to Areas stakeholders raised ofimportance inthefi Map 23:

8 5 Review of the the of Review Great MarinePark Reef 1975 Barrier Act rst round 112/9/06 10:40:42AM 2 / 9 / 0 6

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Map 24: Map 24: Plan – Draft Zoning study area Case d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d ofpublicconsultation to Areas stakeholders raised ofimportance inthesecond round Map 25:

8 7 Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:44AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:46 AM key address changes to nal zoning 8 8

stakeholder issues stakeholder Map 26: Map 26: fi showing study area Case d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d See FigureSee 7for guideto zoning. Numbers onmapcorrespond to numbered notes below. Notes for Map26

10 9 8 7 6 5 4 3 2 1

8 9 reduce onthetrawl andspannercrabfi impact sheries by localcommunities, identifi to contained to Zone boundaries west andnorth edinsubmissionsasimportant. exclude shoalareas, includingthe ‘Banana Gutter’ andthe ‘West Warregoes’, onlinefi to minimisetheimpact shing Lady ElliotIslandReefisincludedinaGreen Zone. This Green Zone wasamendedfrom Zoning theDraft Plan to ofFairfaxsides, Islands, andto thenorth to reduceonthetrawl andspannercrabfi impacts sheries recreational areas. Considerable changesfrom to fi Draft onthe andeastern western nal Zoning Plan, particularly the LadyMusgrave lagoonreef area, were omitted from theGreen Zone to reduceonlinefi impacts key and shery Reef buildsonaprevious Green Zone. Fitzroy andBoultReefs, ofFairfax shoalgrounds IslandReefand to thenorth Green sideofLadyMusgrave Zone andFairfax surrounding Island Llewellyn, IslandReefs Hoskyn, andthenorthern omitted from Green Zone to reduceonlinefi impact shery fi side, ontheeastern nal to onthetrawl Zoning reduceimpacts Plan, particularly andLamontReefs shery. Sykes fi special interest. Buildsonaprevious Green Zone, use, complementstourism butwasamendedfrom to Draft Green Zone ofdeepchannelsbetween recognises importance Wistari andHeron Reefs containingspeciesof fi onlineandaquarium impacts sh onnearby reefs sheries while abioregionprotecting fi Green Reefs Zones Island, amendedfrom to aroundPolmaisefi Draft Erskine andIrving nal Zoning Plan to reduce continue Green Zone sideofNorth to restricted southern West recreational IslandReefallows linefi important shing to proposed insomesubmissions, to reduceonthelinefi theimpact shery Green Zone surrounding as Wilson useofthearea IslandReefcomplementstourism further butwasnotextended ontheline, fi aquarium impacts shandspannercrab sheries fi the ‘Cabbage Patch’. andsouthinthefi were Boundaries to thenorth alsonotextended nal Zoning Plan to avoid trawl areas,avoid important andonthewest sideto avoid linefi shingareasMast Head, of North West Islands, and ontheeastsideto Changedconsiderablyfrom Zoning theDraft values (seabirds Plan, particularly andturtles). Yellow Zone andrecreational complementsthemainlytourism useofthearea, whileprotecting conservation the trawl fi shery considerably reduced from to fi Draft eastand west, to on reduce impacts inthenorth, nal Zoning Plan, particularly The Green values. Zone Green coveringZone conservation protects Reef important Tryon IslandandNorth the area scientifi c research. haveZone boundaries beencontained to ontheline reduce impacts thatoperates in shery fi One Tree IslandandHeron IslandResearch Stations. Adjacent reef zoned Orangeto allow for continuedusefor Park intheMarine rookeries largest turtle loggerhead Pink Zone or ‘no accessarea’ at Wreck Islandrecognises itsNationalPark Scientifi cstatusandthatitisoneofthe Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:47AM 2 / 9 / 0 6

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33806806 GBRGBR internalsinternals final.inddfinal.indd 9191 112/9/062/9/06 10:40:4910:40:49 AMAM M A

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6 0 / 9 / 2 112/9/06 10:40:49 AM ected by the implementation of the Fisheries (East Coast Trawl) Management Plan Management Plan Trawl) (East Coast Fisheries user impacts the from over some protection orded . provides for management of the Great Barrier the of the Great management Reef through for provides Reef Water Quality Protection Plan Quality Protection Reef Water marine and the Queensland assistance park. uses in both the Marineerent Park Financial in 2001. Over the period 2004 to 2006 the Australian Government is providing an assistance package in 2001. Over Government is providing the period 2006 the Australian 2004 to Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 2 9 ort in a number of fi sheries have been introduced in parallel with increasing levels of protection and of protection levels in parallel with increasing been introduced sheries have ort in a number of fi

7 on the Marine Park Pressures of the Authority and responsibilities The governance framework, role and future regulatory environment Barrier and extent of of the Great be shaped by the nature Reef will long-term protection deliver needed to facing the ecosystem. and pressures the threats adjacent the Marine the multiple uses of activities arise areas from from in catchment Park, These pressures Understanding the nature change. Barrier such as climate the Great and other external Reef to pressures is central to and the extent which their impacts be addressed to need to of these individual pressures The extent which these pressures to changes necessaryconsideration of the arrangements. the current to actions boundariesarise and fall within the purview from that occur within Marine Park of the Authority will also posed by these pressures risks the ecosystem to The relative also an importantare consideration. required. approach uence the future infl The of the Marine the main and development At the time the Act was passed, Park. care establishment, control, The tourism. sh and management of the crown-of-thorns oil spills, starfi mining, were pressures perceived parts of large Barrierremoteness of the Great Reef aff by to park could thus initially be delivered management rst decades and the multiple use approach two fi issue and sector. each regulatory for separate approaches for and use of the Marine access to Park with increasing emerged have Over tensions last 10 years the warnings on a number of investment example, activities. Since 1996, for and recreational commercial been issued by the Queensland Department sheriesPrimary have of Fisheries Industries and fi commercial reduce to and over-capitalised. Management plans fully exploited sheries are concernsdue to that the fi eff diff for zoning has been provided jointly on two occasions by the Australian and Queensland governments to address address and Queensland governments to jointly on two occasions by the Australian has been provided the implementation to This assistance was in relation the social and economic impacts of such measures. the to and the update in 1999 Areas of Dugong Protection 11). (Chapter Plan 2003 Zoning and coastal pressure population increasing quality, water change, the last decade climate Also over of the Great on the long-term maintenance ed as major pressures been identifi have development external the Marine largely to them are Park address to and the measures These pressures Barrier Reef. international and cross-jurisdictional policy national, They also have boundaries. or transcend Park decision making. framework for and an integrated approach a consistent implications that require actions, inform to and risks will be required assessments of pressures and qualitative Robust quantitative of the Marine of protection and form Park, level assess the required The need to and priorities. strategies area, or in the catchment in the Marine impacts economic and social result Park assess any that may and to available is not generally or regularly such information At present, the future. will be a major challenge for with the important of the assessments exception pressures, or across pressures individual to in relation underpinning the on the extent information of the and qualitative a synopsis of the quantitative provides This chapter Barrier facing the Great Reef and the agencies and jurisdictions involved. pressures 1999 land-based businesses aff shers and associated fi commercial for d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d are themostheavily Park utilisedarea oftheMarine andfi bybothtourists shers. from the mostat risk. These areasWhitsunday Islandsto contain28percentofinshore Mackay reefs and areimpacts concentrated oninshore reefs, whichputtheareas from to and PortDouglas Hinchinbrook alargeFlood volume ofpollutants. plumesfrom themajorriversare astheycancarry ofconcern Their similar period. 1930 and1996.Figure 9showstheincrease inphosphorusandnitrogen useincatchment areas over a per annum.Figure 8showstheincrease inlandarea usedfor sugarcultivationinQueenslandbetween ofphosphorussince1850andsoilerosion andatripling rangesat0.8to 30tonnes perhectare exports agricultural production.Fertiliser usehasresulted Reefsupports inadoublingofnitrogenGreat Barrier population andcontains30majorrivers. Around 80percentoflandinthecatchments adjacentto the 22percentofQueensland’s comprises large.The catchment area It isvery landarea, 20percentofits acidifi edsoil,andpesticidebeingdischargedriver into Reefviasystems. theGreatfertiliser Barrier in water catchments feeding into Reef. theGreat Barrier sometimesresultThese practices insediment, The diff discharges from outfallsandwaste andballastwater marine discharges from ships. in catchment areas, coastaldevelopment, wetland andmangrove clearing, sewageandstormwater Water Reefisinfl intheGreat quality Barrier suchasagriculture andlandactivities uencedbymarine pathogens anddisease. sulphate soils, altered regimes salinity from discharges offresh water andintroduction ofexotic parasites, starfi threatsOther water quality includepollutionby toxic sh).compoundssuchaspesticides, oilandacid organisms thatcompeteplants, withcoralsorfeed andcansupport off Reef.of theGreat Barrier Poor caninhibitdevelopment water andgrowth quality ofcoralsandmarine Water wasfi quality rstidentifi edin1989asanemerging pressure healthand onthelong-term resilience 7.1 Water quality 1930–1996 Increase inQueenslandlandarea usedfor sugarcultivation, Figure 8:

9 3 use-source pollution that impacts on water quality results onwater quality fromthatoccur pollutionthatimpacts landusepractices use-source Source (Gilbert 2001) Source (Gilbert Review of the the of Review corals (such as the crown-of-thorns corals(suchasthecrown-of-thorns Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:49AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:50 AM to Reef National is provided through the through is provided entering the in the water use sources Reef Water Quality Plan Protection Reef Water was undertaken area the catchment pollution from in use source and the Natural Heritage Trust. Further funding beyond the agreed the agreed funding beyond Further Trust. and the Natural Heritage Reef Water Quality Protection Plan Quality Protection Reef Water and the Trust will be settled by governments through future budget future will be settled by governments through Trust and the was developed and put in place in 2003. The Plan has as its goal halting The Plan and put in place in 2003. was developed ecting water quality were brought together to form a collaborative approach approach a collaborative form to together brought ecting quality water were to protect the Great Barrier Reef from land-sourced pollutants. From this, the this, From pollutants. Barrier land-sourced the Great Reef from protect to National Action Plan National Action 19 Source (Pulsford 1996) (Pulsford Source 4 Protect the Great Barrier Reef from Land-sourced Pollutants. Barrier Land-sourced the Great Reef from Protect 9

Action Plan for Salinity and Water Quality for Salinity Plan Action and Water timetables for the timetables for processes. 19 of Queensland on Cooperation of the State Government and the Government Memorandum of Understanding between the Commonwealth 2001 which resulted in a report, released by the Minister for the Environment and Heritage, (GBRMPA 2002) (GBRMPA and Heritage, the Environment in a report, by the Minister for released 2001 which resulted 26 rivers entering the Marine end-of-river Reportsproposing for Park. also load targets on the issue were Inter-Departmental (2002) and the Productivity Barrier by the Great Reef Protection Science Panel released (2003). Commission activities adjacent to in the catchments related In and Queensland government steps 2002, Australian Barrier Great the Reef aff to a Memorandumof Queensland signed Minister and the Premier the Prime In issue. the this year, to of Understanding The development of the development The through of pollution point sources quality on controlling water concerns to Early focused responses of diff cant investigation Signifi regulation. catchment, 1910–1990 9: Figure Barrier Reef the Great use in and nitrogen in phosphorus Increase catchment, and reversing the decline in water quality entering the Great Barrier Reef lagoon within 10 years. It quality Barrier the decline in water entering the Great Reef lagoon within 10 years. has and reversing diff reduce the load of pollutants from to rst is The fi two objectives. Water Quality Protection Plan Quality Protection Water in a role and conserve that have of the catchment rehabilitate The second is to areas BarrierGreat Reef. The and 65 key nine major strategies actions are under the Plan. There borne water pollutants. removing c and socio-economic assessments. was underpinned by scientifi of the Plan development activities many under the for Funding d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d approach, theprocess andtimelinesfor developing the thebasisof ofthearrangement, explicit theobjectives ofUnderstandingmakes The Memorandum wetlands, estuaries, mangroves, andcoastal areas andreduce andwater intertidal biodiversity quality. ofclimate changeare impacts sealevels Increased alsoofpotential may concern. inundateOther run-off range of28to 32degrees Celsius. fresh lowtidesorheavy extreme Bleachingalsooccursduring water Reef, which,inthecaseofGreat coraltype, tolerance Barrier rangefor theparticular isusuallyinthe temperature above rises the increase bleachingoccurswhentheseasurface withglobalwarming. Mass Coral bleachingisanaturalevent. However, to ofbleachingevents islikely andfrequency theintensity declining water quality. of coralto bleachingeventsofotherconcurrent pressures, willdependontheextent inparticular extensive coralbleachingandreduced andfi speciesbiodiversity shyieldfrom reefs. The resilience coral reefs, Reef, includingtheGreat Barrier asaresult suggeststhere ofclimate willbemore change. It The IntergovernmentalPanel onClimate Change(IPCC 2001)foreshadows ontheworld’s majorimpacts possiblealterations ofoceancirculation. inthepattern • more frequent storms, droughts, fl of oodsandotherextremes weather insomeplaces • changesinweather patterns • • ocean insealevel rises acidifi• cation temperatures increased airandsea-surface • thecomingcentury, globalclimate toOver changeisexpected leadto: Reef waslostinthe1998bleachingevent, whereas thelossin West was48percent. Ocean Indian be more resilient to humanandclimate changepressures. For example, only3percentoftheGreat Barrier Australian coralreefs are currently ingoodconditionrelative to therest oftheworld. Healthy coralreefs will months. Onlyaround halfofthesedamagedreefs areto recover likely 20years. over thenext a signifi bleachingevent cantclimate-related destroyed 16percentofcoral reefs innine inthe world The singlelargest causeofthislossandthreat offuture 1988, for lossesiscoralbleaching. In example, Resources 1998). Institute threatened (World related hasbeenestimated that58percentoftheworld’s coralbleachingevent in1998.It reefs are the world’s reefs 16percentto themassive climate- have andafurther beenlostdueto humanimpacts (GCRMN2000,2004)indicates that11percentof Research Network bytheGlobalCoral Monitoring Reef 7.2 Climate change strategies, the at improving water quality. These includethedevelopment ofcoastalmanagementplans, water recycling additionto the In process seven comprising agenciesincludingtheAuthority. Committee Steering ofUnderstandingestablishesanIntergovernmental Memorandum to oversee the and QueenslandPremier. The fi occurred in2005andthesecondisdue2010. rstsuch report The the Plan formal andtwo progress Council throughbackto thePrime theMinisterial reports Minister andaccountability.transparency There isarequirement for independentauditonprogress against 1994 and measures (for example, theCoastal Queenslandlegislation Catchments Initiative). suchasthe in controllingaff activities

9 5 , Water Act 2000 onto reefs. National Action Plan for Salinity andWaterNational Action Plan forSalinity Quality Reef Water Protection Quality Plan , Vegetation ManagementAct 1999 ecting water quality.ecting , there are anumberofgovernmentinitiatives directed and Reef Water Protection Quality Plan Environment Protection Act 1994 and Natural Heritage andNaturalHeritage Trust programmes Review of the the of Review Great MarinePark Reef 1975 Barrier Act . It alsoensures . It alsoplays arole Land Act 112/9/06 10:40:50AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:50 AM 10 plots annual ce 2003). Figure of the bottom ected to sit at or close By 2004, many Barrierecting 60 per cent of the Great Reef. ) c Ocean, 1871–2006 Ocean, c 6 9

The average warming in Australia’s coral reef regions is expected to be in the range of 2 to 5 degrees 5 degrees be in the range of 2 to is expected to regions coral reef warming in Australia’s The average Barrier above This suggests that the Great will experience Reef temperatures 2100. by the year Celsius This 11). the end of the century almost every before bleaching thresholds (see Figure well present year under considerable frequency will place the coral reefs and intensityincreased of bleaching events adapt be able to may Coral will be minimal recovery as there time between bleaching events. pressure scientists expect that the However, coral and algae species. selection heat tolerant initially through of more frequency the projected and extent than necessary rate of adaptation will be slower resist the corals to for and severity of high sea surface temperatures. 2006 (Lough Source food chains. food 2000). Barrier on the Great Reef (Lough occurred In in 700 years coral bleaching event worst 1998, the in north-east temperatures sea water since in 2002 by the warmest for year Australia This was followed aff bleaching in this year was major There 1870. which had been fully reversed, these events of as a result declines in some species of the catastrophic Offi Greenhouse (Australian of the reef resilience the current demonstrates Pacifi frequency since 1871. of bleaching events showing the increasing indices, thermal stress 10: Figure in 11 sites from averaged indices stress Annual thermal the Increased such as cyclones intensity of storm the severity of storm events is likelyand breadth increase to Absorption the oceans causes higher acidity. of carbon by communities. dioxide ecological damage to that marine to organisms of carbonateThis changes the concentrations and bicarbonate ions available and impact of reefs of erosion rate the increase This may and weaker skeletons. growth slower lead to may aff of the species potentially as many marine upon life, broadly more d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d driver andwillprovide challengesinto thefuture for environmental protection. intheregion.economic growth andexports The economicsofcoastaldevelopment are aclearbusiness (GBRMPA 1998). There isalsoincreasing development thatisproviding resource strong industry andheavy in theCape York Peninsula Coast to 73percentinthenorthern Wide Bay Coast 1996and2011 between population increases from 5to 65percentfrom 1986to changesoffrom 1991andexpected 1percent around 25000,butsomehave upto 140000.Anassessmentoftheselocalgovernmentareas shows There are 21localgovernmentareas adjacentto Reef. theGreat Barrier have Most populationsof currently around to 850000 andexpected grow to onemillionby2026. is 50percenthigherthanthenationalaverage. Reefis The population alongthecoastofGreat Barrier around Australia, Reef. includingtheGreat Barrier Population growth incoastalareas outsidecapitalcities decade.over thenext The ‘sea change’ phenomenonisagrowing pressure onthecoastalenvironment concluded thatAustralia’s environments coastalandmarine areto beunder increasing likely pressure Projected bleachingevents Great BarrierReef Figure 11: The 7.3 Coastal development Thesefi gures show theeff

9 thermal thresholdthermal for mostcoralsisaround 28°C. The predicted changesto seatemperature withadoublingofCO dotted line Y. years, two months are coralreefs >3.2)are every experienced arewillgrossly to expected beseverely e depleted asmortality yearstwo would degrade signifi thedotted lineX.indicates whenthispointwillbe reached. cantly; even Whensevere mortality for coralreefs asaresult ofthechangestostress thermal andreasonable meanresponses by reef corals. Coral reefs thatexp threateningly, thecalculated valueseventuallyabove rise any valueseenonreefs sofar(>6.0oftheupperdotted line). The (>1.0,dotted line)andsevere events bleachingevents century (>3.2,seconddotted perdecadeover line)a thenext century; using thebestavailable globalcirculation models. showshowaccumulated heatstress (asdegreeThe top part heatingmonths)r 7 Australian 2001 StateoftheEnvironment Report Source (GCRMN2004) ect of applying thermal thresholds ofapplyingthermal derivedfromect thelast10years for bleachingofcoralsonthe Central Reef. Great Barrier T (Australian State oftheEnvironment Committee 2001) Review of the the of Review Great MarinePark Reef 1975 Barrier Act 2 intheatmosphere were calculated lower diagram projectsoutcomes erience bleaching events every bleachingeventserience every xceed recovery rates;xceed recovery re drawn on the top part. Morere drawn onthetop part. ts (whendegree heating ises steadily over this he 112/9/06 10:40:51AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:51 AM . In addition, the % change 1986–1996 1996–2011 % change Environment Protection Act 1994 Act Protection Environment has implications for coastal development regulation. Its regulation. coastal development purpose is has implications for Great Barrier Reef Great Integrated Planning Act 1997 Act Planning Integrated A further arises soils. coastal sulphate acid pressure of acid from the release and through 8 9 waterways is subject into Queensland and local to uent discharged and the marine environment

Cape York Peninsula Coast Coast Peninsula York Cape Coast Tropic Wet CoastCardwell/Hinchinbrook Dry Coast Tropic Coast Whitsunday Capricorn Coast Curtis Coast (northern Coast Bay Wide section) 15 5 38 14 24 65 1 33 4 21 34 27 23 73 41 24

Queensland to balance community well-being, economic development and the protection of the natural environment. and the protection economic development community balance to well-being, 7.4 Tourism Barrier the Great of Queensland adjacent to of the areas the economy is a major contributor to Tourism the to main attractions Barrier One of the tourists is its good condition relative of the Great Reef to Reef. a key concern the to Barrier therefore on the health of the Great Reef are Pressures reefs. of the world’s rest tourism industry. on activities tours include day Tourism uses of the Marine is one of the major commercial Park. Tourism and island resorts. Other cruise ships, activities boat hire, include tours, dive high speed catamarans, vessels and 1 500 840 operators fi were shing. In 2005, there particularly shing, charter boat fi recreational days Management data show that visitor in the Marine Charge operate permitted to Environmental Park. The majority of million in 2004, a 5 per cent increase. 1.97 1.85 million in 2001 to from increased have from with about half coming domestic, are some 75 per cent, Barrier the Great Reef, to overnight visitors been date to Islands have Whitsunday Port Douglas Economics 2005). Cairns, and the (Access interstate area. Whitsunday Map 28 shows tourism infrastructure and usage in the tourists. use by of intense areas 10 per cent of the Park. which comprises only around Up this area come to 85 per cent of visitors to Continuing coastal development will result in a number of pressures on the Great Barrier Reef. First, First, Barrier on the Great Reef. of pressures in a number will result coastal development Continuing use of the Marine recreational and for commercial local demand for population will increase increasing turbidity water can impact quality pollution, increasing development on water through Secondly, Park. run-offfrom grass beds, sea wetlands, ats, salt fl salt marshes, the reduction in coastal habitats such as mangroves, from ats. and intertidal estuaries, dunes, mudfl Heavy is heavy industry industry. the Great of pressure to adjacent within catchments Another source are There neries stations. and power copper and nickelBarrier zinc, refi Reef includes alumina, shale oil, for further area. in the Gladstone ve proposals developments 13 existing heavy industry operations and fi Effl environmental pollution is generally managed through point source Ingovernment regulation. particular, under the Queensland assessments and approvals Table 10: Table the to adjacent regions change in coastal Population 1998) (GBRMPA Source d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Map 28: Tourism development andusageinthe Whitsunday area

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6 0 / 9 / 2 112/9/06 10:40:53 AM (2002). This (2002). chg/dpi/hs.xsl/28_ . Permits are the primary are . Permits means of Cooperative Framework for the Sustainable Framework Cooperative of seafood. In some cases the recreational of seafood. In some cases the recreational 20 Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 0 139_ENA_HTML.htm 0 1

managing commercial tourism use. They prescribe where an operator may go and the activities go may that an operator where They prescribe tourism use. commercial managing as and other infrastructure, pontoons moorings, for also required are Permits can be conducted there. best practice are for and incentives educational and collecting activities. Accreditation as research, well and Tourism the The Authoritynotably through works with the industry, key tourism. in managing tools the which has developed Reef AdvisoryRecreation Committee, Opportunities and Recreation Barrier Reef Marine Park Great in the Use and Management of Tourism a key the management of tourism by the Authority. provides basis for Framework 20 taken http://www.dpi.qld.gov.au/cps/rde/x gures from Department Queensland Government of Primary fi Industries and Fisheries 7.5 Fishing Fishing is Park. a major use of the shing constitute Marine (including charter)fi and recreational Commercial with commercial began in the 1880s, prawns Hand netting for Barriera long standing use of the Great Reef. fi shery trawling in the 1950s. otter starting commercial around 1940 and fi n reef shing by the coral fi Park. Barrier sheries Great within the Reef that operate Marine Only of two fi 17 commercial are There Otter per cent of the East Coast the Marine operations that extend beyond much these have Park—30 The boundaries. Fishery and 60 per cent of the Spanner Crab Fishery occur outside Marine Park Trawl occurs in deeper trawling whereas areas, on the perimeter of reef Fishery operates Fish Reef Fin Coral of region c habitat in the southern on a specifi The Spanner Crab Fishery occurs in between reefs. waters the Marine Park. Park at has been estimated shing operations within the Marine fi The value of the commercial OtterThe East Coast 2003). terms (PDP Australia of Production Value $130 million per annum in Gross 82 per cent of this value. Fishery constitute Fish Reef Fin and Coral Trawl and shers (National Recreational Indigenous fi 198 000 recreational It around are is reported that there of recreational The annual catch Survey Barrier the Great Reef. adjacent to 2003) in the catchments Fishing is around 8 500 tonnes shers throughout Queensland fi The impacts of tourism include damage to coral and marine ecosystems through inappropriate anchoring, anchoring, inappropriate The impacts and marine coral through of tourism include damage to ecosystems from diving and snorkelling and pollutant discharge of moorings, and operation activities, development these ships and resorts the future, Looking to during shipping incidents. normal operations and from in transport and advances tourism increases and the demand for as technology impacts increase may Barrier accessible. of the Great Reef more areas remote use of cruise ships make the more increasing tourism and conservation shing, sectorsto be a be expected can also allocation between the fi Resource key use of the Marine in the multiple the future issue in Park. Gross The marine tourism industry economy. the local and Australian is a major contributor to Barrier in 1999–2000 was $4.2 billion (Productivity in the Great Reef catchment tourism expenditure The tourism industry in the $6.5 billion. at around 2020 estimated value for gross 2003), with Commission 48 000 jobs (10 per cent of all jobs) in the region. provides area catchment plans of management and site plans, zoning through regulated activities are in the Marine Park Tourist under the plans developed catch is larger than the commercial catch (e.g. coral trout). Around 55 per cent of recreational fi shing shing of recreational fi catch is larger than the commercial catch (e.g. coral trout). Around 55 per cent shing in Queensland has been trending downwards occurs from the shore (Hunt 2005a). Recreational fi at 1 per cent per annum since 1996 (Hunt 2005a). charter through many shing, and international fi tourists participateSome 45 000 interstate in recreational fi Park. in the vessels operating shing Marine 120 charter around are There shing. fi d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d and market factors. and market (Figure 12)(QueenslandGovernment2005). This isdueto ofabroad theinteraction rangeofregulatory species intheEastCoast Otter Trawl eff 11)andareductioninactual Fishery(Table 1996to 2004there theperiod fiOver hasbeena20percentreductioninannualcatch ofprincipal sh (GBRMPA 2003b). Reef MarinePark Zoning Plan 2003 The area remaining opento trawling in2004–05,includingwiththeimplementationof from contribution thefiwas alsoanin-kind through eff a5percentacross-the-board shery $20 millionwasusedto purchase licencesequatingto 10.86percentoftheeff of previously un-trawled Park. AjointCommonwealth–State areas of oftheMarine adjustmentpackage This provided for ineff a15percentreduction An amendedState fi managementplan sheries for theEast Coast Trawl wasintroduced in2001. Fishery Plan 2003 Plans—the temporal closures. As attheendof2005,Queenslandhadintroduced three Fisheries Management included eff a numberofmanagementcontrols introduced bytheQueenslandGovernment. These controls have 1996to 2004themajorcommercial theperiod Over fi Marine inthe sheries have Park to beensubject sustainable. oftheirculture. part representsIt animportant There isarecognised needto ensure thatsuchhuntingis bysome resources dugongsandothermarine turtles, isundertaken TraditionalHunting ofmarine Owners. on recreational boatfi Marine shinginthe ataroundPark $100million for 2004 (Access Economics2005). andFisheries Industries hasestimated(Hunt 2005a). expenditure ofPrimary The QueenslandDepartment Annual expenditure byrecreational fi shersinthecatchment isestimated $80and$201million atbetween 1988–2004 fi EastCoast Trawl Fishery–annualnumberofotter trawl days Figure 12:

1 0 1 /VNCFSPGCPBUT andthe ort reductionthrough caps, quotas,ort andspatial licencerestrictions, gearrestrictions Fisheries (EastCoast Trawl) ManagementPlan 1999 Source (QueenslandGovernment2005) shed and number of reporting licencesshed andnumberofreporting (includesMoreton Bay), Fisheries (SpannerCrab) ManagementPlan 1999 , is58percentofthetotal fi Marine and34percentofthe Park shery ort. It alsoclosed96000square(28percent) kilometres It ort. :FBS , the Review of the the of Review . Fisheries (Coral ReefFin Fish) Management Great MarinePark Reef 1975 Barrier Act ort inthefiort shery. There ort of38percent ort ort ort reduction. Great Barrier

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6 0 / 9 / 2 112/9/06 10:40:54 AM Environment Protection and Protection Environment ected adjust business and communities came into force. The Plan placed restrictions The Plan force. came into . This includes the fi ve main commercial fi sheries. Approvals are usually fi Approvals sheries. ve main commercial This includes the fi . Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Park Barrier Reef Marine Great trawl in the Queensland East Coast Trawl Fishery (includes areas Fishery (includes areas Trawl Coast in the Queensland East trawl 1996–2004 Park), outside the Marine 2 0 1

SpeciesPrawns 1996ScallopsBugs 8 936 1997Squid 760 7 338 1998 1 054 8 555 662 1999 167 1 052 7 891 2000 748 236 6 087 932 2001 744 6 133 2002 189 958 551 6 979 2003 1 059 108 7 313 393 2004 571 174 7 167 322 442 117 478 664 126 469 133 470 152

on the areas available for commercial and recreational fi shing. The overall impact of the 2003 Zoning Plan Zoning impact The overall of the 2003 shing. fi and recreational commercial for available on the areas and between 1 and 5 per cent impactcatch of commercial to be 10.5 per cent shing was estimated on fi fi Australian years 2004–05 and 2005–06, the nancial Australia 2003). shers (PDP In the fi on recreational help aff $87 million to funding of Government has made available The assessment and analysis of the socio-economic impacts of Plan. the impactsto Zoning of the 2003 further is considered zoning 11. in Chapter Complementary conserving 20 per cent of the coastline adjoining the zoning mirror approximately 2004 (Hunt 2005a and 2005b). It coast marine in November by Queensland State park was introduced is sheries occurs in estuaries and intertidal fi 50 per cent of net, crab and beam trawl that around estimated part that form areas marine of the State park. Park sheries in the that operate Marine of 16 Queensland-managed fi 2004, a total Since November under the requirements been subject the assessment and approval to have 1999 Biodiversity Act Conservation which case the in shery waters, Commonwealth is in occurs if the fi Assessment years. a period of three for migratory listed species and communities, shery threatened listed for impacts on cetaceans, is assessed fi shery has an export component, in which case the the fi marinespecies and listed species and/or where shery sustainable manner is determined. is managed in an ecologically extent which the fi to It can also damage the seabed and ‘by-catch’. species and both target sh numbers, can impact on fi Fishing By-catch the use of nets and anchors. 10 times that two through to quantity range from estimates reefs Far ve-year period in the undertaken CSIRO depletion experiments, trawl species. of the retained a fi over Northern between 5 per cent Section net removed of the Marine shown that one pass of a trawl have Park, sheries management plan fi trawl The recent 1998). I. et al. (Poiner and 25 per cent of benthos (seabed life) by-catch devices that can for reduction requirements these issues and introduced address has sought to a 25 per cent reduction in The plan also targeted per cent. 30 by-catch by up to trawling reduce in prawn the impacts on the seabed between 1999 and 2005. Government 2005) (Queensland Source in 2004 introduced force came into Fishery that Fish Reef Fin the Coral Management for Plan The Fisheries The implementation and 77 per cent reduction in licences. allowable catch a 37 per cent reduction in total Plan. of this plan coincided with the introduction Zoning of the 2003 Fishery was impacted by the introduction of 15 Dugong Protection Fish In Inshore Fin 1997, the East Coast licence buy-out assistance of $2.5 million for Financial in which netting is restricted or prohibited. Areas by governments. was made jointly available the East sheries, fi the other two major commercial for been completed not as yet Management have Plans Fishery Fisheries. Coast Dive-Based and East sh InshoreFinfi Coast In July 2004 the Table 11: Table otter harvested principal species of by in tonnes catch Annual d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d non-extractive useofthePark isnowamajorpressure.non-extractive implementation ofthe2003Zoning Plan. The allocationofresources and extractive between ofuse. placed onaccessandtypes The areato suchzoning subject hassignifi cantlyincreased withthe Park zones Park allowrecreational, usesoftheMarine through conditions commercial andconservation including allocationofresources for commercial andrecreational fi shersinindividual Marine sheries. fi resources inthemajorfi to increasingly hasbeensubject tighter sheries managementcontrols sheries fi environmentcomplex regulatory for businessplanningbycommercial interests. Since1996,accessto and responsibilities vested inanumberofdiff There environment, are andregulatory nowmany tensions objectives, dimensionsto between thepolicy Protected onoceans,framework Marine Areas andfi shing. management andenvironment protection legislation andtheAustralian Government’s legalandpolicy consistent withthe World Convention, Heritage theAuthority’s legislative objectives, Queenslandfi sheries considerably since1975. Today, needto beapproached managementactions inamanner thatis The managementrequirements for fi Marine andtheecosystem inthe sheries havePark changed and Rescue. ConventionInternational for theSafety Convention ofLife Search atSeaandtheInternational onMaritime Nations Convention ontheLaw theChicagoConvention oftheSea, CivilAviation, the onInternational in accordance withAustralia’s conventions obligationsunderarangeofinternational includingtheUnited inAustralia. andaviationprotection, search andmaritime andrescue services These roles are performed isresponsible Safety Authority The Australian for Maritime safety, maritime environment marine wet seasonandnarrow shippinglanesinsomeareas. andcomplextidalstreams.occasional cyclones Shipsencounter shallowwaters, reducedinthe visibility region iscovered ofreefs, byanextensivenetwork to cays strong andislands andissubject tradewinds, Route,The navigational the taskalongtheInner Torres Strait and itstransitpassagesisdemanding. The Channel. the Capricorn Passage nearCairns, Palm Passage near Townsville, Hydrographers Passage andinthesouth, nearMackay Cape southofGladstone. Shipsmay traverse Reefviafour theGreat Barrier maintransitpassages:Grafton Channel) continuingsouthwards through theCoral Seaandrejoining theQueenslandcoastnearSandy in thesouth. The Outer Routelimitofthe commencesattheeastern Torres East Strait(theGreat North ReefandtheQueenslandcoastfrom theGreat between the Barrier north-south Torres Straitto Gladstone There are majorshippingroutes two Reefandthe intheGreat Barrier Torres Strait. Route extends The Inner developments are projected to increase 2001and2020. byabout36percentbetween mining andmineralsprocessing. For example, around Townsville, andGladstone such Rockhampton alongQueenslandcoastalwaters to isexpected increase for withexpanding Demand shippingservices general cargo Committee ReefShippingReviewSteering (Great 2001). Barrier 5percentand10ofshipsareBetween oiltankers,24percentcontainervessels, and22percent signifi cargo, cant tonnages ofexport includingcoal, bauxite, ores, nickel raw sugar, aluminaandsilicasand. Reefand Barrier Torres Strait. The vessels Reefare usingtheGreat carrying 42percentbulkcarriers, Barrier ofgoodsincludinghazardousto, are materials A widevariety transported from andthrough theGreat and Torres Group StraitShippingManagement 2003). through Hydrographers,with therest ordeparting entering Palm Passages orGrafton Reef (Great Barrier Reefand within theGreat Barrier Torres Straitregion. Route 75percentofthesevessels Some usetheInner year approximatelyEvery 6000shipmovements oflarge vessels inexcess of50metres inlengthoccur 7.6 Shipping

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6 0 / 9 / 2 112/9/06 10:40:54 AM . for for grounding grounding Iron Baron Iron Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great in 1970 led to high mortality in 1970 led to in pearl of oysters 21 Oceanic Grandeur Barrier on the Great Reef— each of the pressures ectively managing operational spill incident in Sydney Harbour in 1999 resulted in clean up costs, legal in clean up costs, Harbour operational spill incident in Sydney in 1999 resulted National Plan to Combat Pollution of the Sea by Oil and other Noxious and Hazardous Substances of the Sea Hazardous and Oil by and other Noxious Pollution to Combat National Plan mandatory ships and runs the by commercial cient coastal navigation ship reporting system 4 0 1

However, a total of 18 pollution events required some form of response. In addition, between 1985 of response. some form required of 18 pollution events a total However, Strait) Torres Barrier the 31 major shipping incidents in the Great Reef (excluding were and 2005 there and 16 collisions. comprising 15 groundings REEFCENTRE at Hay Point. In addition the 2003 Zoning Plan includes designated shipping areas throughout throughout shipping areas includes designated In Plan 2003 Zoning addition the Point. REEFCENTRE at Hay ports. access to passages and guaranteed recognised the Inner provide to Route The Strait region. Torres impact Barrier adversely on the Great to Reef and Shipping has the potential has been via ship hulls and ballast water marine new environments species into introduction of invasive oceans. world’s to the threats ed by the greatest four International as one of the Maritime Organization identifi the ed in the port However, of Cairns. was identifi mussel, green the Asian In pest species, 2001 a potential of the pest. the establishment has so far been successful in preventing national marine pest response paints on Other of anti-fouling the use disposal, waste shipping impacts chemical spills, include oil and the to is provided air pollution. Protection and and anchorage, groundings damage from physical ships, Ships (MARPOL), from of Pollution the Prevention Barrier for Great Reef under the International Convention bans tankerThis legislation and Queensland legislation. Commonwealth through which is implemented and sewage discharge. chemicals, washings, cargo 230 reports Maritime BarrierThe Australian Authority of oil spill sightings in the Great Safety has recorded in a major oil spill pollution of these incidents has resulted since 1989. None Strait region Torres Reef and jointly by the Australian that is administered the REEFPLAN programme through response requiring event Barrier Authority the Great Marine Reef and the Queensland Government Maritime Park Authority, Safety under the compulsory and chemical tankers. and oil 70 metres pilotage of boats over the safe aids for Maritime a national networkThe Australian Authority Safety provides of integrated and effi 7.7 Summary of The major threat Barrier on the health of the Great Reef Marine Park. pressures clearly many are There the Yet Barrier on the Great Reef. pressure change is the overarching global climate warmingseas from extent change and its impacts by the Authorityclimate of or the actions cannot be directly controlled Barrier Maintaining in a the Great and Queensland governments alone. Reef ecosystem of the Australian withstand the major impacts change, it to of climate condition will be essential for and resilient healthy Thus eff in particular coral bleaching. shing—in pollution, tourism, shipping and fi direct source development, coastal quality, including water will be of paramount importance of the ecosystem, the resilience the next over ensure 30 years. to order The environmental and economic impact of an oil spill and subsequent clean up operations can be The environmental the followed The oil spill which Australian waters. by incidents in other cant, as demonstrated signifi Strait of the Torres in the grounding the farms a serious and pearl recently, depletion of juvenile collecting More beds. near Launceston in 1996 involved a bunker fuel spill with clean up costs of around $10 million. The a bunker $10 million. fuel spill with clean up costs of around in 1996 involved near Launceston D’Amato Laura than $3 million. totalling more nes and fi proceedings Inperforming Maritime Australian its functions, the Authority with the Safety works collaboratively Marine issues within the pollution and safety Authority It in addressing Park. was instrumental in the by the International as a Particularly Sea Sensitive Area declaration of the area Maritime Organization through Maritime of the shipping routes The Australian Authority the safety Safety oversees in 1990. the under the requirements and administers the Marine Park 21 Maritime by the Australian Authority. Safety the Review Panel to Information provided d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:40:55 AM provides for the overall the overall for provides from some protection orded Great Barrier Reef Marine Park Park Barrier Reef Marine Great has achieved its original objective its original of has achieved ective operational and institutional management was established, the main perceived pressures on the pressures the main perceived was established, rst 30 years and the founding of the Great Barrier of the Great Reef Marine and the founding Park Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great —‘the establishment, control, care and development of a marine and development park care —‘thecontrol, establishment, Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great . The 2003 Zoning Plan also brought about an eightfold increase in the parts increase an eightfold about of the also brought Plan The 2003 Zoning . Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great 8 0 1

in the Great Barrier Reef Region…’ The sheer size and scale of the Marine Park, the complex legislative and and scale of the MarineThe sheer size the complex legislative Park, Barrierin the Great Reef Region…’ continuing challenges for will present risks and pressures emerging and the many policy environment and Queensland governments. the Australian both the Authority for and framework. During this period, both the Australian and Queensland governments have continued to framework. to continued and Queensland governments have During both the Australian this period, maintain and the long term to workingcommitment to for a strong collaboratively demonstrate together this is the fact Barrier to that the Great Reef is in good condition Testimony Barrier the Great Reef. protect its exceptionality and the world (GCRNM 2000, 2004), further around reinforcing other reefs to relative iconic status. delivery the future objects of the current considerable challenges for of the remain there Nonetheless, 1975 Act Barrier Reef Marine Park Great establishing the Marine Park and putting in place an eff establishing the Marine Park conservation 20 key in conjunction Around of the Marine and management with multiple use. Park also applicable are and eight international conventions legislation and State pieces of Commonwealth the Authority interact with to (see Appendix F). In requires addition, management of the Marine Park and Queensland government agencies (see Appendix G). 20 other Australian around At the time the sh and the the crown-of-thorns damage from starfi shipping, oil spills from mining, BarrierGreat Reef were parts of large aff The remoteness of the Marine Park of tourism. rapid growth to park management was thus initially rst decades and the multiple use approach two the fi high use over each issue and sector. regulatory for by separate approaches be delivered able to rst section proclaimed has been an evolutionary with the fi The establishment of the Marine Park process, in 1979 and the last 10 sections in 2001. A consolidation of the sections method of with a consistent in 2004 under the achieved was only Marine the entire Park across zoning 2003 Plan Zoning to extractive closed Queensland activities. At the same time, and therefore ‘green’ ed as classifi Marine Park approach a consistent providing thereby complementary adjoining coastline, the introduced for zoning as a whole. the area across Over the the last 30 years 8.1 of the fi Achievements with the journey beginning Barrier has been a 30-year the Great The establishment of Reef Marine Park historic 8 and framework priorities Challenges, the future for Authority, moving through the progressive declaration of specifi c areas within the Great Barrier within the Great Reef areas c declaration of specifi the progressive moving through Authority, of the Park. as part zoning Region and arriving of the Marine integrated at the present-day Park the size roughly kilometres, an area 344 400 square is very covering around The Marine Park large, The operating land area. comprisesof Japan. Its 22 per cent of Queensland’s area catchment water The is also highly complex. environment d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d 2001 amendmentto the associatedillustrated withtheimplementationofDugongProtection byactions Areas in1999andthe research, educationandPark management.Further nexusis recognition ofthiseconomic/conservation on commercial operators. tourism isappropriatedThe levy to to fundprogrammes theAuthority for in 1993oftheEnvironmental Park, mostlyimposed Charge, Management ontheuseofMarine alevy emerged. measure Alandmark intheapproach Park to multipleuseintheMarine wastheintroduction focus hascomeinto sharper andarangeofapproaches toconservation addressing resource usehave ofcommercial thesustainability andrecreationalThe nexusbetween andecosystem activities objectives, hasthusemerged asamajorissue. of conservation Fish Fishery. Park Resource allocationintheMarine across commercial andrecreational uses, inthecontext in 2004a37percentreduction since 1996.In Total AllowableCatch wasintroduced for theCoral ReefFin fuel andlabourcosts, have catch intheEastCoast seena20percentfallinactual Otter Trawl Fishery Park. in theMarine These factors, together suchasincreasing withchangesinothercostsofproduction investment andintroduced warnings managementcontrols commercial for fi key two operating sheries ParkMarine isclassifi ed Overfor generaluse.thelastdecadeQueenslandhasalsoissuedanumberof Park intheMarine hasincreased activities fromextractive 4to 33percentandonly34ofthe onaccessanduse.introducing restrictions seven grades ofzoning withvarying The area protected from The of broad-based fi managementcontrols. sheries plans ofmanagementfor areas ofhighusageorspecialsignifi canceandtheintroductionbyQueensland the applicationofacomprehensive ZoningPark, theuseofdetailed Plan oftheMarine across themajority ParkThe way the Marine resource asawholeisaccessedandusedcurrently defi nedinseveral ways: measures.through conservation Park have healthandresilience heightenedthelong-term theneedto Reef oftheGreat preserve Barrier for commercial andrecreational purposes. Atthesametime, thepressures facingtheMarine andrisks will becomeincreasingly challenging. are Demands increasing for Park accessto anduseoftheMarine ParkApplying theconceptofmultipleuseto themanagement oftheMarine 30years over thenext Challenges for thefuture 8.2 economic impacts causedbytheintroductionof economic impacts for andupstream assistanceto bothmarine anddownstream land-basedbusinessesfor socialand impacts. More recently theAustralian Governmenthasmade$87millionavailable in2004–05and2005–06 $22.5 millioninfi nancialassistancefrom theQueenslandand Australian governments to address structural introduced bythe 1999anintegrated in1997.In governance framework nationalapproach to environmental regulation was considerable changesincethemid-1990s. The Australian Governmentintroduced anewfi nancial The regulatory, environment governanceandpolicy forPark managementoftheMarine hasalsoseen with the likely economic and social impacts, both marine andonland. bothmarine economicandsocialimpacts, with thelikely acute needto integrate theassessment ofecosystem protection needs, andthenaturerequired, ofaction pressures require aconsistent andintegrated thefuture, approach. In therefore, there willbeaneven more Park oftheMarine to ecosystem. sustainability thelong-term Measures to addressimportance these change impacts,populationpressure andcoastaldevelopment, allofwhichhave becomeofincreasing implications. national, policy andcross-jurisdictional international issues,They includewater quality climate pressures ParkOther ontheMarine are to largely ortranscendPark external have andoften boundaries including oceanspolicy, fi management,natural sheries resource managementandclimate changepolicies. A broad Park, withtheregulation rangeofnationalpoliciesnowintersect andmanagementoftheMarine legislation, andtheState becameresponsible for commercial fi managementincoastalwaters in1995. sheries government in2003. There have beenequivalentchangesinQueenslandState environment protection to therecommendations to review becamesubject oftheUhrig whichreported authorities for statutory

1 0 9 Great BarrierReefMarinePark Zoning Plan 2003 Environment Protection Conservation Act andBiodiversity 1999 Fisheries (EastCoast Trawl) ManagementPlan 1999 signifi cantlyincreased levels of resource protection, Great BarrierReefMarinePark Zoning Plan 2003 Review of the the of Review . Together thesemadeavailable Great MarinePark Reef 1975 Barrier Act . Governance arrangements . Governancearrangements . 112/9/06 10:40:55AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:55 AM Great Great ective engagement with ectivein delivering on its charter and that only and other regulatory measures concern or about duplicate expressed in the Marine operators Park cient. Some commercial of zoning ective monitoring and enforcement the through as implemented regulatory of the Marinecient administration environment, Park 0 Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park of protection level determining the appropriate Marine Park levels protection Marine Park to an overarching conservation overarching an to objective externalboundaries the Marine or are to Park 1 1

• eff • and of ecosystem, on and risks the Marine to Park pressures a means of assessing emerging • the in place across of protection the level science-based changes to proposed assessment of any • changes to of any the capacity assess the socio-economic to impacts, both locally and regionally, • that transcend Park and marine the ability assess and manage coast, catchment pressures to • effi The Authority is at a point of transition from its initial focus on establishing and zoning the Marine on establishing and zoning It Park. its initial focus The Authority is at a point of transition from is Neither of and its long-term protection. usage of the Park on managing that is centred a role now moving to the protection these functionsThe challenges for can be undertaken the Authority in isolation, nor by alone. of the Authority is in which the role approach an integrated will require and management of the Marine Park to be taken c considerations need policyset within a broader and governance framework. A number of specifi the following: for that such a framework can provide ensure account to into • subject multiple use, that allows for management of the Marine to Park approach an ecosystem-based 8.4 Future considerations 8.4 Future 8.3 Stakeholder views 8.3 Stakeholder that two mean things will be essential for in the future facing the Marine challenges The many Park harmonious and stakeholder approaches successful management relations—eff stakeholders, and transparency and accountability in the public domain. During the course of this Review, stakeholders, and transparency and accountability domain. During in the public the course of this Review, in themes issues of stakeholder as recurrent engagement, transparency emerged and accountability have stakeholder representations. countervailing stakeholder one On the been put forward. perspectives the Authority on Two have that the Authority has been highly eff felt many hand, some stakeholders see the On the other hand, needs. future address evolutionary to change was required Authority such dissatisfaction as biased and lacking Stakeholders expressing did so in the accountability. and in particular recreational to in relation the outcome Programme, Areas context of the Representative shing. fi commercial that the transparency stakeholdersOverall, and accountability considered of the Authority could be day-to-day to allocated management also concerned that the resources A number were improved. insuffi were level. and State Government at Australian processes administrative fragmented the view that everything expressed many was working issues, governance Into and well relation Other the status quo should be maintained. stakeholders that the Authority considered therefore that the functions and lacked much power actions, and proposed of its accountabilityhad too for the Authority should become the responsibility of the Department and Heritage. the Environment of whether policy with the of views as to best located functions was a divergence were there Similarly, Authority or the Department. d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d impact on the Marine Park. ontheMarine impact issuesthatwill critical on thelong-term action decisionsandtake governments sothattheycanmake Finally, needsto theframework provide for theAustralian cooperationbetween andQueensland provide aclearer environment for businessplanning. • streamline process andregulation across agenciesandjurisdictions • ofsequentialandconcurrent changesare impacts ensure thecostofmeasures andsocio-economic • achieve commercial, outcomes social, culturalandconservation • ecosystem, biodiversity, habitats, fi sh-stocks, shingandfi to: fi sheries shouldalsoprovideThe framework for anintegrated approach Park to themanagementofMarine processes anddecisionsto betransparent to stakeholders. • onresource astructurefor alternative decisionmaking allocationbetween orcompetingusesofthe • 3. Decision making across the whole framework should be underpinned by a periodic across byaperiodic shouldbeunderpinned thewholeframework making Decision 3. To ensure issuesare thatbroader addressed policy andthedevelopment ofmanagementmeasures is 2. Thefuture require roleoftheAuthority andfunctions arenewed focus of onthedualobjectives 1. ofthisreport. part Park ReefMarine belowandoutlinedinFigurethe Great issummarised Barrier 13asaguideto thesecond With theabove requirements inmind, proposed theframework to provide for protection thelong-term of A framework for thefuture 8.5 4. The Authority should remain as a statutory authority, shouldremain a constituted TheAuthority andcomprising asabodycorporate asastatutory 4.

1 1 assessed ParkMarine for operational and policy matters.for operationalandpolicy shouldbeachieved throughAuthority defi theapplicationofprinciples ning roles and responsibilities Council. Eff among otherthings, provide andprocesses greater oftheMinisterial withrespectto thecharter clarity eff inthepublicdomain. accountability considerationsandto toand deliver inform transparency performance, managementandpolicy focus shouldbeanincreased emphasisonusingresearch, to measure andreporting monitoring ofthisrenewed part Park. Akey protectionongoing managementandlong-term oftheMarine Financial ManagementandAccountability Act 1997 recommendations review, oftheUhrig theAuthority’s to the operationsshouldalsobecomesubject ‘executive management’ governancestructureshouldbeappliedto theAuthority. Consistent withthe offi group ofstatutory bybiophysical,supported socialandeconomicresearch. Park. condition oftheMarine shouldprovide quantitativeThis report andqualitative information Marine Park Report Outlook 1 ective, theagreement theAustralian between andQueenslandgovernmentsshouldbeupdated to, ective collaboration between the Department oftheEnvironment andthe andHeritage theDepartment collaborationbetween ective ceholders. As a predominantly regulatory, service delivery and advisory body, andadvisory ceholders. an As apredominantly delivery regulatory, service providing anintegrated assessmentoftheuse, risks, pressures onand asaprescribed agency. Review of the the of Review Great MarinePark Reef 1975 Barrier Act Great BarrierReef 112/9/06 10:40:55AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:55 AM Ministerial Council ------Standing Committee of Officials Standing Committee of Queensland Government Intent objectives management Statements of Park Authority Key functions Expectations and Minister for the Executive Management of risks and pressures and public understanding Great Barrier Reef Marine Regulation and day-to-day Environment and Heritage Multiple use and conservation Monitoring and assessment of Regular and public reporting on inform decisions by government Identifying long-term research to Marine Park and outlook in terms ------condition and use of Marine Park the Board Heritage Advisory Committees Reef Advisory Department of Environment and Local Marine and 2 Barrier Reef Peer Marine Park 1 Panel 5-yearly Great Review 1 Outlook Report

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6 0 / 9 / 2 112/9/06 10:40:56 AM ectiveness (s. 5), is to 5), is to (s. ectively and accountably addressed. that the primary objective of the Authority be: Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great recommends that to achieve this objective, the Authority should focus both on Marine both on the Authority this objective, should focus achieve that to recommends 4 Marine Park, including the areas that should be declared to be a part to Marine that should be declared of the Park including the areas Park, plan the Act, Regulations and zoning functionspermitting and approval and enforcing Marine Park. accountability, which would include: which would accountability, and wise use of the resource protection the long-term protection, wise use, understanding and enjoyment of the Great Barrier Reef. Great of the understanding and enjoyment wise use, the long-term protection, 1 1 ective management requires the involvement of the Queensland Government and the Australian the Australian of the Queensland Government and involvement the ective management requires

of management responses. the Review Panel these considerations, Given • and plans of management plans zoning developing • This includes performing with the Queensland Government. cooperatively the Marine managing Park • the Marine carrying to Park relevant research out or arranging • advisory of education, provision the services for or arranging and information the providing to relating manage the will be to the challenge the future, LookingThese general functions paramount. to remain manner with the primary Barrier Great Reef in an integrated processes, goal of maintaining ecological to ects approach an ecosystem-based This refl biodiversity and functioning communities. biological Oceans Policy. Government’s in the Australian as detailed Areas, management of Marine Protected government and Queensland with other Australian closely more The Authority work even to will need be Management will need to of the Marine users and local communities. Marine Park agencies, Park and socio-economic Regular assessment c biophysical and analyses. research scientifi by robust informed of with an understanding together time will be required, over of the health and integrity of the ecosystem and the eff and risks, pressures the emerging cultural and economic values and uses, the social, advise and act on behalf of the Australian Government in relation to ‘the establishment, control, care care ‘the establishment, control, to advise and act in relation Government of the Australian on behalf encompasses a number of this role Performing Barrier of the Great Reef Marineand development Park’. functions, which in summary include: • of the and development the care advising and making to the Minister to in relation recommendations The current role of the Authority, as set out in the of the Authority, role The current Government departments as the Authority. as well and agencies, discuss Subsequent chapters these entities. of each of and responsibilities the roles discusses This chapter performed: are 10 discusses the engagement and responsibilities Chapter roles in which these the way reporting monitoring, and socio-economic use of research, 11 the Chapter of users and communities, 12 the Chapter management, policy as an underpinning and accountability, for information development used 13 the regulatory good governance and Chapter and processes powers ensure to structures required manage the Marineto Park. 9.1 of the Authority role The 9 Roles and responsibilities BarrierManagement by the Authority of the Great not something that can be achieved Reef is alone. Eff – the objectives of to monitoring Marine and assessing the condition of the regard having Park, Park management and on ensuring that longer-term issues are eff management and on ensuring issues are that longer-term Park main functions should be: Authority’s the Accordingly, • whilst facilitating multiple use basis, on an ecosystem the Marine managing Park • undertaking monitoring and reporting management, policy inform to and or facilitating research, The Review Panel d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d • providing or arranging for the provision of education, advisory and information services relating to providing the andinformation orarranging for services theprovision ofeducation,advisory • outorarranging research relevant Park to carrying theMarine • Park managing theMarine and cooperatively includingpermitting withtheQueenslandGovernment, • developing zoning plansandofmanagement • recommendations inrelation to theMinister to advisingandmaking thecare anddevelopment ofthe • (ss. 7&8)shouldcontinue, inparticular: In sodoing, Panel theReview In Park onthemanagementofMarine andtheoutlookin regularly andpubliclyreporting – research identifyinglong-term neededto inform decisionsbygovernmentandunderstanding – Regulations underthe The fi rstoftheseelementsincludesthedevelopment of zoning plans, plansofmanagementand fi on-ground eldmanagement. • theadministrationandenforcement instruments ofthoseplansandregulatory • andcontrolling instrumentsrestricting useofthe theestablishmentofplanningandregulatory • There Park are elements to three operationalmanagementoftheMarine asfollows: key zoning park. oftheQueenslandmarine with therecent ofzoning extension throughout theCommonwealth Park Marine andthecomplementary ParkThe managementoftheMarine into thefuture willprovide considerablechallenges, allthemore so Park oftheMarine Management andfacilitatingmultipleuse derived from aone-off isnoted thatmuchofthefundingfor ispresentlyof thesefactors. andcomplianceactivities monitoring It mechanisms required to eff been zoned, andgiven increase thelikely inusagepressures into thefuture. The resources anddelivery Eff essential to ensure ofthezoning theintegrity planandthemultipleuseapproach. for inthefuture. management bytheAuthority be apriority Eff The ReviewPanel compliancewiththezoning considersthateducationaboutandensuring planshould for future management. integrated manner. haveThese arrangements beensuccessfulto date andprovide asoundfoundation are andislandnationalparks managedinalargely park Park, theQueenslandcoastalmarine Marine the Authority, theQueenslandGovernmentandotherAustralian Governmentagenciessuchthatthe of visitor facilities. are managementfunctions currently deliveredThese day-to-day cooperatively by Park, rehabilitation on-ground andthe establishmentandmaintenance andmanagementworks Marine system, theenforcementthe permit requirements, ofregulatory fi day-to-day eldmanagementofthe includingadministrationofThe secondandthird awiderangeofactivities oftheseelementscomprise that managementisresponsive to theneedsandinterests Park ofMarine usersandcommunities. inthedevelopment ofzoningaccountability plansandenhancingengagementmechanismstoensure directed atimproving theway inwhichthisisdone, for example, byincreasing and transparency bytheAuthority. Chaptersshould continueto 10and13provide beundertaken recommendations

ective enforcementective willbechallenging ReefRegion oftheGreat given has now Barrier thatthemajority 1 1 Marine Park. Marine approval andenforcing functions Regulationsandzoning theAct, plan Park, includingtheareas ofthePark thatshouldbedeclaredMarine to beapart Marine ParkMarine 5 context of risks andpressures. ofrisks context the public grant provided through theNaturalHeritage Trust (Chapter 4)thatends in2006–07. Great BarrierReefMarinePark Act 1975 ectively undertake educationandenforcement needto beassessedinlight undertake ectively recommends thattheAuthority’s setoutinthecurrent Act functions . The ReviewPanel considersthatthesetasks ective educationandenforcementective willbe Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:56AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:56 AM ort that ective ective protection protection ective Great Barrier Reef Great recommends cient and eff and cient Great Barrier Reef Marine Park Outlook Park Barrier Reef Marine Great . Chapter 13 also provides 13 also provides . Chapter of the ence powers ective enforcement, the Review Panel Review Panel the ective enforcement, be undertaken (Chapter 13). This review should be done in light of the importance should be done in light of the This review be undertaken 13). (Chapter consistency better achieve as to well management as future to cient enforcement Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment . This publication would report condition This publication would and the overall on the management of the Marine Park . ectiveand effi 6 1 1 ectiveness of existing management measures. Research should also be directed at providing timely at providing should also be directed Research ectivenessexisting management measures. of

a comprehensive review of the investigation, enforcement and off enforcement of the investigation, review a comprehensive with the other aspects to of the regulatory relating framework,recommendations of as the streamlining such at directed are These recommendations impact assessment processes. permitting and environmental and ensuring that the Authority regulatory has and streamlined environment consistent a more producing the regulatoryaccess to necessarymanagement tools and the effi ensure to of eff Marine Park Act 1975 Act Marine Park Marineand wise use of the Park. 9.2 of the Minister and the Department roles The statutory for authorities responsible The Uhrig explains that Ministers within their portfolios. It review are departments This requires to of departmentsis the role this responsibility. Ministers assist to in discharging support the governance of statutory to and advise their Minister in relation authorities. In it is summary, the Authority. governance arrangements for future 12 details recommended Chapter for This implies a role the Authority. structure be applied to management’ ‘executive that an recommended the Minister the operations of the Authority in communicating the expectations and in of government for performance.overseeing The primary of Expectations be Statements and communication would achieving this mechanism for Intent. of Expectations made by the Minister government expectations Statements and communicate are of a statutory Statements policies. authority performance, to values and broader objectives, in relation the of Intent, of Expectations, outline the initiatives made by the authorityStatements to in response authority These statements is undertaking, undertake, to or proposes meet government expectations. to discussed furtherare 12. in Chapter Research, monitoring and reporting to inform management, and reporting monitoring inform to Research, policy and accountability A key function of the Authority carry should be to monitoring and research, out and/or arrange for periodic public reporting. eff monitoring and reporting essential for are 11, research, in Chapter discussed in detail As day-to-day of the Marine management and the long-term protection Both short- Park. and long- use and the by monitoring and assessment of Marine be informed term management need to Park eff on the Marine and health and the risks Park, of ecosystem and analysis and pressures information socio-economic information. delivering expected are and monitoring will show whether management measures Such research conservation to management eff in regard and multiple use objectivesoutcomes and will enable future To help the Authority help the challenge of eff meet To to be better targeted. This research and monitoring would also underpin and monitoring would accountability by ensuring that This research targeted. be better to and that performance information based on robust is are management actions of protection and the level against objective indicators. measured in a together and monitoring should be brought research Periodically, Report outlook, assessment of the longer-term social and a risk-based and address provide of the ecosystem, transparency and management and provide The report both inform would economic considerations. 11. detail in Chapter reportThe proposed is discussed in greater performance.accountability for d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d of the Authority to the Department, the Minister andto theMinister to theDepartment, of theAuthority istherefore objectives ‘whole-of-government’ ecosystem andfi approach management.Aprinciples sheries to responsibilities and to the relationship management ofislandsinthe World Area, Heritage shippingissuesoranintegrated approach to the on thespecifi cnature oftheissueinquestion andthecontext; for examplewhenconsidering responsibilities andtherest oftheAuthority oftheAustralian depend Government,astheseboundaries isdiffi It off Council’sproposed thattheMinisterial 9.3)shouldincludeconsiderationofonshore, (see Section charter issuesto beconsidered andregulatory andaddressed. policy and cross-jurisdictional Additionally, itis Park national, international asasinglesystem. Achieving thisintegration willrequire whole-of-government, andthat,infuture,boundaries ways needto befound to managethecoast,catchment andMarine However, itisapparent andpressures Park thattherisks beyond Reefextend Marine ontheGreat Barrier development. inform managementandpolicy research, to into thefuture andreporting oftheAuthority monitoring shouldbetofunction undertake Government onthecontrol, care asdiscussedabove, Park. Indeed, anddevelopment oftheMarine akey This isnotto say, however, source ofadviceto theAustralian shouldnotbetheprimary thattheAuthority the implementationofpolicy, ratherthanitsdevelopment. source in bereinforced. ofadviceto Ministers isprimarily authorities alsonotes thattherole ofstatutory It also, astheprincipal review theUhrig recommends thattheroledepartments ofportfolio Importantly discussed ingreater detailinChapter 12. intheproposed for governanceframework are theAuthority The roles andDepartment oftheMinister oftheAuthority, oversee reports. the performance for example, performance byconsidering • recommend membersto theGovernor-General theappointmentofAuthority • would: Department, theMinister, additionto andIntent, theuseofStatementsby ofExpectations In supported introduced inrelation to theAuthority. • those functions provided thosefunctions for inthe • responsibilityfor: shouldhaveThe Authority primary The roles, andwhethertheissuesare local, legalauthority State, Commonwealth, nationaloracombination. environment willneedto work. inwhichtheAuthority proposedThe principles are basedonrespective eff mechanismin andassuchare animportant andoversight ofperformance government expectations provide andIntent inthesettingof structure,Statements andtransparency ofExpectations formality recommended adecisionbytheAustralian Governmentisrequired. • there isaneedfor anequivalentandconsistent approach inareas Park adjacentto theMarine • Park thematter transcendsMarine boundaries • should bedeveloped where: approachA wholeofportfolio involving andotherrelevantagencies theAuthority, portfolio Department orguidelines, thatis, operationalpolicy policiesrelated to theadministrationofanestablished •

ective governanceandaccountability.ective Accordingly, Panel theReview shore matters. andcross-jurisdictional 1 1 boundary government policy, regime regulatory and/orprogramme. Parkregulated oftheMarine ormanagedoccurswithintheboundaries 7 recommended cult to defi neprecisely the between operationalandpolicy theboundaries respective asaguidefor thefuture. This approach recognises themany dimensionsoftheoperating principles are principles asfollows: Great BarrierReefMarinePark Act 1975 Review of the the of Review recommends where the activity to be where theactivity Great MarinePark Reef 1975 Barrier Act thattheybe 112/9/06 10:40:56AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:56 AM ectiveness in achieving ective management ective ciency and eff and ciency ciency in government service delivery. and legal uncertainties. geographical to due delineate cult to effi greater ort for provides that to improve the interaction between the Department improve that to and the recommends 8 other Australian Government agencies. other Australian 1 1

requires coordinated action by both governments. Secondly, where the interests and responsibilities of the and responsibilities the interests where action Secondly, by both governments. coordinated requires eff collaborative two governments overlap, both common and individual goals and objectives. the to and value of collaboration. One example relates the need for A number of examples illustrate earlier noted in this report, and management of marine Government As parks. creation the Australian Queensland islands intertidal over the Marine areas, declare Park to power the legislative does not have cant and in some signifi ecologically are such areas However, of Queensland. waters’ ‘internal and the established The Queensland Government has therefore Heritage Area. World a part form cases, of the coverage almost complete ensure so as to such areas, marine to national parks terrestrial and in relation further This in turn creates for imperatives a network Barrier through of parks. of the Great Reef ecosystem measures Through collaboration, in particular of the multiple parks. in the management and regulation a more delivers eld management, collaboration and joint fi zoning mirror such as joint permitting, effi and greater regulatory and streamlined environment consistent important is also all the more Collaboration because the boundary Government between the Australian and Queensland parks is in most places diffi 9.3 of Queensland role The jurisdictional Barrier that crosses of The Great Reef is a complex ecosystem boundaries and areas cases overlapping. complex and in many themselves which are responsibility, BarrierThese factors and Queensland make management of the Great Reef by the Australian collaborative Barrier because management of the Great Firstly, this. two key for are reasons There governments essential. one jurisdiction,any of and cost eff successful and remit the power Reef is beyond qualityAnother example of the importance the management of water within to of collaboration relates the Queensland Government, This is primarily for a role Barrier the Great Reef. into feeding catchments management resource natural through a role Government can also play although the Australian Trust. Initiative Catchments of the Natural Heritage such as the Coastal programmes A whole of portfolioA whole of and/or whole-of-government the Department the Authority, and involving approach departments Government Australian other relevant and agencies should be taken where: • external the Marine are or its impacts, to Park the matter, • national or cross-jurisdictional policy are there implications or issues of precedent • budget impact, is a major such as with structural there adjustment assistance • by the Department and regulation legislation or change in policy, consequential for is a need there and arrangements as management processes current be applied within the These principles can readily Primary in place. already ow and collaboration are fl information facilitate to a number of mechanisms among these is the weekly meeting of the Departmental Departmental Executive, Division Heads and reportsThe Authority this provides to Agency the Chairperson Heads (including of the Authority).Portfolio performance risks, issues, issues. and other priorities, emerging on strategic times a year three forum of management practices 11, development and policy and in Chapter above directions as covered Finally, risksand pressures. and analysis of measures, with the research closely integrated should be more in future and Queensland governments. by the Australian approach an integrated This will also require The Review Panel Authority, senior management of the Department senior management Authority, and the Authority should meet at least twice annually to and budget issues. operational policy, research, review systematically d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d consultative bodies. Underthe At offi oftheAuthority.and plansofmanagement,aswell asthegeneraloperationsandperformance approving theAuthority’s operationalpoliciesandoverseeing signifi cantinitiatives suchas zoning plans government involvement oftheAuthority, byQueenslandinsettingthestrategic directionandpriorities ofPremier oftheQueenslandDepartment andCabinet. is theDirector-General This facilitates whole-of- to nominate oneofthefour membersoftheAuthority. As amatter theQueenslandnominee ofpractice, At Authority level,At Authority the Parkagreeing oftheMarine to andoverseeing thedeclarationofsections scientifi c research. and/orscience.parks The role oftheCouncil includesagreeing management, for arrangements day-to-day from Ministers eachgovernmentrepresenting two Council comprises theenvironment, marine tourism, level,At aMinisterial collaborationisprovided for Council. through ReefMinisterial theGreat Barrier The governance andmanagement. and operationalarrangements. facilitate QueenslandinvolvementThese arrangements atalllevels of Collaborative Reefiscurrently managementoftheGreatprovided ofinstitutional Barrier for inavariety Current collaborativ unilateral, issue-specifi byeachagency. caction approach to provide byallagenciesislikely for better outcomes thanwould atlower costandimpact Park forReef Marine Authority managing Reefecosystem. theGreat Acollaborative andintegrated Barrier for ofQueenslandmanagementarrangements, Heritage andtheGreat assessingthesustainability Barrier responsible for managing fi oftheEnvironment and Department the Marine withinthe sheries Park, responsibility, mostnotablythemanagementoffiIn summary, shing. theQueenslandGovernmentis One fi ofcollaboration relates to areas nalexampleoftheimportance ofcommon, yet diff Committees establishedundertheQueensland offi Council meetings. Similarly, inLocal Advisory CommitteesAuthority’s Marine andparticipate ReefAdvisory Cabinet, theenvironment andfi sheries. QueenslandGovernmentoffi include senioroffi may nominate ReefConsultative membersoftheGreat Committee. Barrier Current Committee members memoranda ofunderstanding. Anexampleisthe Finally, collaborationisprovided for inrelation to somespecifi cissuesthrough agreements and managementandtoand annualbusinessplansfor oversee implementationofthoseplans. day-to-day together work throughthe QueenslandGovernmentandAuthority committees to establishstrategic are byQueensland andthecostsshared governments. managedasasinglepark bythetwo Offi management oftheCommonwealth andQueenslandparks. Underthesearrangements, themultipleparks Collaboration atanoperationallevel isalsofacilitated through fi for arrangements day-to-day eld and itsagencies. incooperationwith theQueenslandGovernment itsfunctions withthepower tothe Authority perform single park. The zoning, whichseekto eff At anoperationallevel, collaborationisachieved through measures andmirror suchasjointpermitting and Australian governmentagenciesandlocalgovernments. water fl owinginto Reef. theGreat Barrier inthe Plan areActions Queensland the ofvarious responsibility the Prime andQueenslandPremier, Minister setsoutstrategies for andactions improvingof thequality

cials of the Authority arecials oftheAuthority involved inQueenslandconsultative committees, Advisory notablyMarine 1 1 9 cer level, relationships collaborationisfacilitated andformal through mechanismssuchas working Great BarrierReefMarinePark Act 1975 cials from Queensland Government departments responsible forcials from QueenslandGovernmentdepartments thePremier and Great BarrierReefMarinePark Act 1975 ectively manageandregulateectively theCommonwealth asa andQueenslandparks Great BarrierReefMarinePark Act 1975 e managementarrangements Fisheries Act 1994 Reef Water Protection Quality Plan (s. 8)facilitates suchcollaboration,byproviding (s.

10) provides Queensland with the capacity 10) provides Queenslandwiththecapacity Review of the the of Review . cials are alsomembersofthe (s. 22),theQueenslandGovernment Great MarinePark Reef 1975 Barrier Act . This Plan, agreed to by erentiated, cials from 112/9/06 10:40:57AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:57 AM Reef Water Quality Protection Quality Protection Reef Water ort, by clearly defi ning the roles, roles, ning the ort, by clearly defi (which preceded the Emerald Agreement), in the Emerald Agreement), (which preceded erentiate responsibilities for fi shing, rather than shing, fi for responsibilities erentiate the ers somewhat from ective collaboration. More specifi cally, such an agreement such an agreement cally, ective specifi collaboration. More ort objectives. common address to Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great , however, in that it attempts to delineate and diff and delineate to in that it attempts , however, 0 responsibilities and powers of relevant institutions of relevant and powers responsibilities performance can be established and communicated between governments the marinesuch as the management of islands within parks. 2 1

• ensuring transparency mechanisms for and accountability. the for agreement considers the establishment of an intergovernmental Review the Panel Accordingly, the future. successful management into Barrier for Great Reef an essential component of organising management and collaborative as its clear objective facilitating the integrated should have This agreement Barrier and wise use of the Great Reef. the protection for provide so as to of marine and land environments operational protocols accountability, functions, powers, should clearly describe nature, the The agreement agreement The the Ministerial between the governments, and the Authority. and interrelations Council for day-to-dayresponsible management of the to be rm that Queensland will continue should also confi day-to-day detailed arrangements More for management should Marine subject Park, the Authority. to agreements. in separate remain other formal and informal agreements and in established practices, understandings and relationships. agreements and informal other formal is an essential foundation agreement intergovernmental that a comprehensive believes The Review Panel good governance and eff and framework for establish: would • which expectations the purpose as mechanisms through of and objectives of collaboration, as well • eff collaborative an institutional and operational framework for • matters sheries management and other substantive on fi collaboration and coordination improving is discussed in turn. Each of these proposals agreement An intergovernmental of goodwill Barrier on a high level management of the Great Reef rely the collaborative Arrangements for been forthcoming, This has and their agencies. and Queensland governments between Australian the intergovernmental especially in the absence of a comprehensive granted, but it cannot be taken for setting out the objectives arrangements of collaboration and the institutional and operational agreement those objectives. achieve established to an provide E) does not of 1979 (Appendix considers that the Emerald Agreement The Review Panel in scope and detail and much of its substance is limited The Agreement framework. overarching adequate rather than explicit. Itimplied, establishes only two aspects management arrangements— of collaborative Barrier will be a Great Reef Ministerial for that there will be responsible and that Queensland Council management for collaborative Authority. Other arrangements eld management, subjectto the day-to-day fi their basis in the have Enhancing collaboration history is a strong governments and Queensland While there between of collaboration the Australian management considers collaborative the Review Panel Barrier Great in management of the Reef, arrangements by: should be enhanced • agreement intergovernmental establishing a comprehensive • joint policy and policy for development enhancing the Ministerial as a forum coordination Council Another example is a 1988 Memorandum of Understanding on fi shing and collecting in the Marine is a 1988 MemorandumAnother example on fi of Understanding This Memorandum diff of Understanding Park. Plan eff collaborative foster to attempting d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d been basedonrobust science. andobjective uncertainty. Yet that theAuthority’s onfi actions othersubmissionsassert managementhave sheries not guidingtheAuthority’sor objectives involvement infi management,whichisacauseofindustry sheries submissionsexpress thatthere concern framework donotappeartoOther beany clearandstablepolicy andtheQueenslandGovernment. bytheDepartment management duplicates managementactions submissionsto theReview. thattheAuthority’smaking role infi Somesuchsubmissionsassert sheries The involvement infi oftheAuthority managementwasapointofcontention sheries for many people fi shstocks uses, butatmanagingfor extractive thehealthofecosystem asawhole. firestrict (amongotherthings),theyare shingactivities nottargeted of simplyatmaintainingtheviability than, themanagementoffi sheries resources. Thus,suchas zoning plans whilemanagementactions to Reefecosystem managetheGreatthe Authority asawhole, Barrier whichencompasses, butisbroader for Reefandtovalues oftheGreat provideecologically Barrier sustainableuse. opportunities This requires isresponsibleThe Authority for Park managing theMarine soasto protect theenvironmental andcultural and managementoftheislandswithinState andCommonwealth parks. marine managing thecurrent the appropriate Such matters responsibilities couldincludeassessingpressures andexpertise. andrisks, and, to thedirectionofCouncil, subject to progress theseissuesthrough committees steering with terms, coordination itsrole development orpolicy shouldbeto identifyissuesrequiring jointpolicy A standingcommittee ofoffi role inproviding broad fi oversight ofday-to-day eldmanagement. issues aff coordination inrelation development for andpolicy to bothonshore jointpolicy clear charter andoff in thenewintergovernmental agreement. The agreement Council shouldprovidewitha theMinisterial To address this, itisrecommended thattheresponsibilities andpowers defi oftheCouncil beclearly ned always been eff Council areand powers oftheMinisterial somewhatunclearanditisapparent thattheCouncil hasnot for thedevelopment coordination. ofjointpoliciesandfor Atpresent, policy however, theresponsibilities role Council to hasakey play infacilitatingcollaborativeThe Ministerial management byproviding aforum CouncilEnhancing theMinisterial under the in somecases, putinplace accreditation onthebasisofmanagementactions hasbeenprovided, inpart, identifirecognised assustainableonthebasisthatcertain edmeasures willbeimplemented. Furthermore, oftheEnvironmentapproved onaprospective andHeritage basis, bytheDepartment thatis, theyare ofecologicallya framework fi sustainabledevelopment. Most Marine inthe sheries arePark currently to putinplacebytheQueenslandGovernment ensuremanagement arrangements fi shingoccurswithin isresponsible for The Department ‘managing themanagers’ byassessingandapproving thefi sheries requirements, equipmentlimits, size limitsandclosedseasons. through meanssuchasthedevelopment ofmanagementplansandinputcontrols, includinglicensing oftheeconomicallyandecologicallythe objective sustainableuseoffi sheries resources. Thisisachieved The QueenslandGovernmentisresponsible for managing fi with Marine sheries, includingwithinthe Park, thataff activities regulatory As noted above, andtheQueenslandGovernmentare theAuthority, allinvolved theDepartment in Improving collaboration onfi sheriesmanagementand related activities

1 2 1 ecting theprotection Reef. anduseoftheGreatecting Barrier The Council shouldalsocontinueto play a Great BarrierReefMarinePark Act 1975 ective asaforumective collaborationandcoordination. for policy Reef Water Protection Quality Plan ect fiect management. sheries cials should be established to support the Ministerial Council. general theMinisterial In cials shouldbeestablishedto support , notablythe2003Zoning Plan. , considerationoffi managementactivities sheries Review of the the of Review Great MarinePark Reef 1975 Barrier Act shore 112/9/06 10:40:57AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:57 AM Reef shore shore , Environment Environment ort at directed ectiveness of management ectiveness of management ciency and eff Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great ort. industry It also improve would certainty purposes and Marine Park management by the Authority. by the Authority. purposes management and Marine Park to Settlement, consideration could be given Constitutional shore ). 2 fi sheries management within the Great Barrier Reef World Heritage Area Barrier sheries management within the Great Reef fi and socio-economic data timeframes actions and inform continuous improvement and adaptive management. and adaptive actions continuous improvement and inform 2 1

has a responsibility to protect the environmental and cultural values of the Marine Park and to provide provide and to and cultural values of the Marine Park the environmental protect to has a responsibility shing activities fi the Authority regulate to This requires opportunities sustainable use. ecologically for shing by the Department participate plans and to means such as zoning fi in management of through Barrier the health of the Great Reef Government, with the objectiveand the Queensland of managing as a whole. ecosystem sheries management fi framework for a clearer is a need for considers that there the Review Panel That said, This framework should clearly Department the actions by the Authority, and the Queensland Government. eff and cooperative collaborative promote and seek to and responsibilities identify roles Itcommon goals and objectives. that management actions by all agencies concerned should also ensure and monitoring data. and objective research based on robust are In achieving these objectives. It so the Ministerial the medium for that is recommended provide Council quality manage water (the that used to similar to an approach develop to wish may the Council doing, Water Quality Protection Plan Quality Protection Water Panel notes Review the However, sheriesto Queensland. adjacent fi Settlement regarding Constitutional of the Off review future that in any governments between the Queensland and Australian relationship simplifying the intergovernmental Park. sheries management in the Marine and fi living marine resources regarding This approach should identify:This approach • and ecosystem to governments in relation and Queensland the objectives of the Australian and goals • c and objective scientifi achieving the goals and objectives based on robust and actions for strategies • and implementing actions milestones and the associated for responsible agencies and organisations • the monitoring and evaluation that will be undertaken assess the eff to sheries management actions by fi to in relation and responsibilities processes by setting clear objectives, evaluation and reporting ongoing monitoring, be enhanced through Accountability would governments. that fi to ensure would also help proposed sheries framework the Finally, requirements. ned against defi c and socio- scientifi and integrated management actions based on common, robust by all agencies are economic information. sheriesresource management and living marine fi for and responsibilities The division of roles It examine the 1995 Off of this Review to is not the role of policymanagement is a matter preference. by taking advantage of synergies, while removing duplicate eff duplicate while removing by taking advantage of synergies, In doing these things, the objective is to bring together and integrate planning and fi sheries management planning and fi In bring and integrate the objective is to together doing these things, actions Government, assessment and monitoring by the Queensland by the Department for the effi will improve approach and integrated Such a cooperative Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection The Review Panel believes that the Authority has a legitimate role in relation to fi shing activities. As noted As noted shing activities. fi to in relation role that the Authority believes has a legitimate Panel The Review the under the Authority, as manager of the Marine Park above, d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d aclearrole thataff ofimproving activities collaborationandcoordination ofregulatory – responsibilityfor the – astandingcommittee ofoffi – therole fi ofoverseeing day-to-day parks eldmanagementofthemarine – coordination inrelation development for andpolicy and to bothmarine jointpolicy aclearcharter – Council byproviding strengthening itwith: theMinisterial • confirms thatQueenslandwillcontinue to be managementofthe responsible for day-to-day – thenature, describes clearly functions,powers, accountability, operationalprotocols and – facilitatingtheintegrated hasasitsclearobjective and andcollaborative managementofmarine – establishingacomprehensive intergovernmental agreement that: • Reef beenhancedby: theAustralian between andQueenslandgovernmentsinmanagementoftheGreatarrangements Barrier To ontherole sumupthissection ofQueensland, Panel theReview ofrecommendations Summary

1 2 3 expertise Council, progress thesethrough committees steering withtheappropriate responsibilities and coordination and,to development thedirectionof orpolicy subject requiring jointpolicy land issuesaff in separate agreements to theAuthority, Park, subject Marine management for withthedetailedarrangements day-to-day interrelations Council governments,andtheAuthority between theMinisterial land environments soasto provide for theprotection Reef andwiseuseoftheGreat Barrier Water Protection Quality Plan Council may wishto develop anapproach similarto thatusedto (the managewater quality and ofothersubstantive parks. matters suchasthemanagementofislandswithinmarine The ecting the protection and use of the Marine Park theprotection anduseoftheMarine ecting and World Area Heritage Reef Water Protection Quality Plan cials established to support the Ministerial Council to identifyissues theMinisterial cials establishedto support ) inrelation to fi issues. sheries Review of the the of Review recommends Great MarinePark Reef 1975 Barrier Act thecollaborative ect ect fi sheries Reef 112/9/06 10:40:57AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:58 AM ective, ective, cient, eff cient, ces in Cairns, Townsville, Mackay and Rockhampton to Townsville, ces in Cairns, ces in north Queensland. offi cers based in regional 6 2 1

10.2 engagement mechanisms Current The Authority engages stakeholders community and the through in management of the Marine Park Keya variety mechanisms. among these mechanisms is a range of stakeholder and informal of formal the Reef Advisory and the Local Committees Barrier Committee, Great Reef Consultative committees—the stakeholders and local communities for a forum provide These committees Marine Advisory Committees. simply Engagement is also achieved on management by the Authority. and feedback input into provide to of the Authority and its offi by the presence partEngagement is an integral of the planning and regulatory functions undertaken by the Authority. such as the major management initiatives to consults extensively in relation example, for The Authority, plans of management and regulatory plans, activities of zoning such as the assessment of development although consultation during the by legislation, consultation is required Some such permit applications. the formal statutory for far exceeded example, requirements for Plan, of the 2003 Zoning development public consultation phases. engaging to its approach review Pty (2005) to Ltd In 2004, the Authority late commissioned Futureye particularly focused review views of key on the The Futureye stakeholders and local communities. was a means of The review Plan. the 2003 Zoning for process on the development stakeholder groups identifying needs and opportunities enhancing community engagement structures and processes. for the to ‘partnership approach’ at establishing a directed made a number of recommendations Futureye presence. regional management of the Marine and maintaining a stronger notably by developing Park, Marine Advisory a Local example, For been implemented. already have of the recommendations Many in early 2005 and additional community area was established in the Bundaberg representatives Committee established a The Authority has also recently Committee. the Consultative to been appointed have The the Authority. engagement throughout and coordinate oversee to Community Group Partnerships includes liaison offi Group 10.1 importance The of engagement Engagement of stakeholders of management of the is an essential component and local communities Nations Convention obligations under the United meets its and of ensuring that Australia Marine Park and Natural Heritage (1972). Cultural World of the Concerning the Protection tourism shers, fi and commercial is a wide range of users of the MarineThere including recreational Park, on a multiple-use Marine Managing the and traditional owners. Park and shipping operators basis requires as meeting as well these users, the Authority manage and balance often competing demands from to conservationoverarching Understanding and working objectives. constructively with stakeholders effi are in ensuringis essential in meeting this challenge and management responses practical and relevant. The Engagement with users is also a priority its size. due simply to in management of the Marine Park 2 300 kilometresQueensland and takes along the coastline of extends in a large approximately Park of people in these communities and lifestyle The livelihood communities. range of number and diverse It Barrier is important the Great connected Reef. to is often considered strongly that their needs are and the socio-economicin management of the Marine Park impacts of management actions are incorporated in decision making. Northern, Northern, Far and Southern Central Regions. York, the Cape cover 10 users and communities Engaging d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d multiple use and this carries inherent challengesofmanagingmultiple useandthiscarries competinguses. Park andmanagementoftheMarine ecosystem seeksto provide forunderstanding thattheconservation the environmental, Park. social, cultural andeconomicvaluesoftheMarine This willincludeconveying an taskinbuildingrelationships willbeto Park. Akey establishabroad publicunderstandingof the Marine for thefuture Buildingthese relationshipseven successfulmanagementof willbeimportant non-existent. However, relationshipsin commercial andrecreational withsomestakeholders fi are shingsectors pooror hasestablished eff Overall, theAuthority 2005. inDecember andtheAuthority Owners Resources Agreement wasentered Park into onuseoftheMarine byGirringun seacountry Traditional commenced andtheReefGuardian Council approach wasdeveloped. The fi rst Marine Traditional Useof to shipping andenvironmental 2004theReefGuardian protection (Chapter Schoolsprogramme 7).In committee andboard level atanoperational, Safety inrelation Authority Australian advisory Maritime Committee.Recreation ReefAdvisory alsohasaneff The Authority representativesCommittee andcommunity 2002)developed bystakeholder through the Tourism and intheGreat BarrierReefMarineParkand Recreation Opportunities isbasedonthe activities range ofstakeholders.For example, muchoftheAuthority’s approach to themanagementoftourism alreadyThese changesbuildonanumberofsuccessfulconsultative arrangements inplacewithabroad 1975 in relation to environmental under the assessment andpermitting impact Another issueraisedinsubmissionsisthatthere shouldbegreater andpublicparticipation transparency reference to thedevelopment ofthe2003Zoning Plan (Chapter 6). These issuesare discussedbelow. processes.regulatory suchsubmissionsrelate Most to thedevelopment ofzoning plans, withparticular ofplanningand A large number ofsubmissionsto theReviewcommented onengagementasapart required. generallygoesbeyond thatstrictly bytheAuthority undertaken requirements, system. Somesuchconsultationhasitsbasisinstatutory permitting although consultation notably thedevelopment ofzoning plansandofmanagementtheadministration bytheAuthority, processes undertaken componentofplanningandregulatory Consultation isakey processesPlanning andregulatory processes consultative andthevarious committees. ofplanningandregulatory engagement asapart intheirsubmissionsto theReview.issues raisedbystakeholders The following discuss, sections inturn, into accounttheFutureyetaking andthe bytheAuthority (2005),thereforms report already undertaken The ReviewPanel ofthecurrent hasconsidered Review, engagementprocesses andstructuresasapart 10.3 Enhancing engagement ownership byallgroups. theAuthority,between withoutcomes localcommunitiesandotherstakeholders, having ahighdegree of of managementandsite managementplansdemonstrate ongoingandhighlyeff are currently 10suchplans inplace(Chapter 5). The ReviewPanel hasalsoformed aviewthattheplans in thedevelopment andimplementationofplansmanagementsite plans. There with theReviewPanel, exceedingly works andcommunities thattheAuthority well withstakeholders Finally, expressed aconsiderablenumberofstakeholders the view, bothinsubmissionsandmeetings framework. which dealswiththeregulatory inthisrespect. as anexampleofbestpractice inChapter 13ofthisreport, This issueisdiscussedfurther

1 2 7 . Most suchsubmissionspointed to. Most the Cooperative Framework fortheSustainableUseandManagementofTourism ective working relationshipsgroups. withmoststakeholder working ective Environment Protection Conservation Act andBiodiversity 1999 (Tourism and Recreation Reef Advisory andRecreation Advisory (Tourism Reef Review of the the of Review ective working relationship withthe working ective Great BarrierReefMarinePark Act Great MarinePark Reef 1975 Barrier Act ective ective engagement

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6 0 / 9 / 2 112/9/06 10:40:58 AM ectively . Two basic views were views were basic Two . between at times competing and the considered Some in this group ective. Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great zoning of proposed the implications evaluate adequately to cient opportunity, time and information 8 2 1

engage with them. Some felt that during the Representative Areas Programme, for example, there were were there example, for Programme, Areas that during the Representative engage with them. Some felt insuffi input. Others that the Authority informed take did not properly and provide felt account of information close deliberately to used that information in some cases, during public consultation and, provided locations. and productive favoured views and interests assess competing to the Authority was required Plan, In the 2003 Zoning developing tourism operators, shers, and game fi commercial range of users including recreational, a diverse from but also each other, not only against be reconciled, had to These demands users and shippers. recreational conservation Programme. against the overarching Areas objectives of the Representative ‘ground establishing of assessment, the Authority published Operational Principles guide this process To H) established ground (Appendix Operational Principles Biophysical of zoning. the development for rules’ and Programme Areas objectives of the Representative at achieving the environmental rules directed minimum per cent of each bioregion, a minimum of 20 the goal of protecting example, for included, whole of the zone, ‘no-take’ is included in a no-take a reef and a rule that, where for desirable sizes areas Operational Principles and Management Cultural Feasibility Economic, Social, should be protected. the reef J)(Appendix minimise detrimental to impacts stakeholders rules designed to and local established ground ict in a manner that minimises confl be located Zones that Green by providing example, for communities, with users. in which the Authority analysis and case study illustrating the way an utilised 6 provides Chapter including information of zoning, in the development social and economic information environmental, was not driven simply by environmental that zoning The case study illustrates in submissions. provided uenced by socio-economic 6) Maps 12–17 (in Chapter considerations. infl but was also heavily objectives, social and economic uses of the level, an indication of the extent which, at an aggregate to provide Maps that 12–15 illustrate a range of users. for Plan in the 2003 Zoning accommodated are Marine Park economic locations with the highest aggregate avoid shing generally fi commercial closed to areas security shipping by means of has provided of access for Plan Map 16 shows that the 2003 Zoning value. to relative locations shing fi Map 17 shows the location of popular recreational Shipping Areas. Designated zoning. nal the fi was done in a manner that sought to the placement of zones that, overall, These maps demonstrate objectives while also maximising social and economic usage and minimising environmental achieve a trade-offsocio-economic involved this outcome impacts. Achieving were, There social and economic values. well as between environmental, as icting views and interests, confl cant amount of other as a signifi as well Plan, 21 500 submissions on the Draft Zoning example, for Because of this, of zoning. the development socio-economic into be factored data to and environmental ects totality the of the assessment of all the views and considerations. necessarily refl Plan the 2003 Zoning expressed. On the one hand, a large number of stakeholders number a large engagement by the Authority consider to one hand, On the expressed. and eff exhaustive extensive, be best practice, comprehensive, This group be almost excessive. to Programme Areas during of consultation the Representative degree the and diving, sailing primarily with tourism, shipping, associated comprised persons and organisations conservation local community and some groups. community, and academic groups research shing fi and commercial although certainly recreational not all, a number of, were there On the other hand, does not eff of bias and the Authoritystakeholders the view that culture has a who expressed Consultation in zoning plan development plan development in zoning Consultation As primary the plans are is managed and regulated. Zoning which the Marine mechanism through Park the Park. local communities adjacent to and for users of the Marine has implications for Park such, zoning with particular plans, zoning of on the development the Review commented submissions to Many of the the development to reference d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d the Authority, aswell asbeinginformed bytheperiodic approve theopeningof zoning planfor amendment. This decisionshouldbemadeonadvicefrom forstability theecosystem andbusinessenvironment. The ReviewPanel There isaneedto ensure thebenefi tsof zoning accrueandthatthere isanappropriate to establish period bytheMinister). andgeneraldirections administrative (suchasStatements ofExpectation arrangements enhancing theprocess for developing zoning plansthrough and framework thechangesto theregulatory The ReviewPanel Improving thezoningplanprocess atalocalandregional thesocialandeconomicimpacts level withState andhowtheyinteract and • thebasisfor decisionsonalternate useisclearandinthepublicdomain • there issuffi • are stakeholders appropriately informed ontheoverarching andrationalefor objectives theproposals • degree inthefuture andaccountability suchthat: oftransparency needfor pointto anunderlying Such concerns thezoning plandevelopment process to have ahigher appropriately considered. As aresult, however, feel anumberofstakeholders thattheirviewsandinterests were not The ReviewPanel following process would apply. A review wouldberequired notnecessarily seven after years, butshouldareview becommenced, the zoning planshouldnotbecommenceduntilatleastseven years from thedate theplancameinto eff overall response timesofbiological ofa andhumansystems, areview andamendmentofallorpart zoning, shouldhave theMinister onlythepower to for suggestchangesto theAuthority consideration. specifi cally, inorder to ensure the retains adegreeAuthority ofindependenceinthedevelopment of approval forThe current arrangements ofthefi Ministerial nal zoning planshould remain asis.More developed andrefi ned. to andbemadeavailable consultationandshouldbeupdated prior asthezoning planis be undertaken from analysisshould comment ateachstageshouldbeextended onemonthto three. Socio-economic plan,shouldberetained.zoning planandanotheronadraft However, for theminimumperiod public requirementThe current for statutory publicconsultationphases, two oneontheintention to create a developing thezoning plan. rationale. Onceapproved, shouldberequired theAuthority to have regard to theOperationalPrinciples in byarobustPrinciples andpubliclyavailable explanationoftheirscientifi shouldbesupported candpolicy in whichcompetingenvironmental, socialandeconomicvalueswillbeconsidered. The Operational of thezoning planwillproceed, including, for example, thelevel ofprotection targeted andtheway Minister. parameters onwhichthedevelopment andobjectives shouldsetoutthepolicy These principles The development ofzoning shouldbebasedonasetofpublishedOperationalPrinciples approved bythe the process. released atthistime. shouldhaveThe Minister thepower to inrelation issuedirectionsto theAuthority to needs to bereviewed. ontheproposed Information process for amendingthezoning planshouldalsobe drawingrelease onrelevant areport, scientifi research, explainingwhy candsocio-economic zoning At thefi rstconsultationphase(ontheintention to create/amend should a zoning plan),the Authority relevant information.

1 2 local governmentresponsibilities are understood. comment 9 cient timeinrelation oftheproposals to thecomplexity for to prepare stakeholders recommends recommends thatthezoning planprocess bemademore transparent andaccountableby that,asafi rststep,Minister the shouldbe responsible required to Outlook Report Report Outlook Review of the the of Review detailed inChapter 11,andother recommends Great MarinePark Reef 1975 Barrier Act that,given the ect. ect. 112/9/06 10:40:58AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:58 AM ce ce ective and has confl icting ective and has confl that the Consultative Committee be reconstituted as an be reconstituted Committee that the Consultative (s. 20) provides for the creation of the Great Barrier of the Great Reef the creation for 20) provides (s. Review of Corporate Governance of Statutory Governance Authorities and OffiReview of Corporate recommends and the Queensland Government departments Premier cials from with responsibility for (Uhrig 2003). Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 0 conservation organisations. Cabinet, environment and fi shing and fi Cabinet, environment 3 1

A number of submissions to the Review contended that the Consultative Committee was not working Committee well that the Consultative the Review contended A number of submissions to Other submissions considered charter. it with a clearer by providing this could be resolved and suggested in 2001 has been superseded by the Reef Advisory introduced of the Committee Committees that the role Marine established between 1999 and 2005. Advisoryand the Local that were Committees c issues advice on specifi access to the Minister have to is a need for considers that there The Review Panel and other Indigenous, environmental community, business, and use from protection Marine to Park related is no longer eff Committee Consultative the stakeholders. However, relevant Advisory committees Committee The Consultative The • Government Departmentthe Australian and Heritage from of the Environment a representative • Strait Islander representatives Torres and Aboriginal • community research and fi tourism, the shing, recreational shing, fi of commercial representatives accountability the Authority to and the Minister. the Review Panel this, address To Should such suggestions not be incorporated into the fi nal plan delivered by the Authority to the Minister, Authority by the to the Minister, delivered nal plan the fi be incorporated suggestions not Should such into the plan at the time the Minister Parliament but must report amend the plan, such changes to may any is tabled. it is and accountable, is both transparent plan process of the zoning that the outcome ensure To the Authority make Minister acceptance by the information and Parliament, that, following recommended for changes reason the and in particular, zoning plan, nal the fi stakeholders to on the rationale for available could include the publication of a synopsis disclosure This information nal plans. between the draft and fi and its outcomes. of the process to the relation to advise the Act, in ed in the Minister are Its as specifi Committee. functions, Consultative the Marine to Park. advise the Authority relating operation of the Act and to on matters comprises by the Ministerappointed a minimum of 12 members and one member of the The Committee one-third nominate Queensland may including the member of the Authority). of members (not Authority. which includes: of the Committee, 24 members currently are There • Chairpersons Reef Advisory of the Authority’s Committees • offi Local AdvisoryMarine Authority’s Committees ve of the Chairpersons of fi • senior Holders example for advice on particular by the Minister, The Advisory provide would as requested matters Board of the Advisory in providing This role Board and Indigenouscoastal development use of the Marine Park. Marine the Minister that of the Reef be distinctadvice to Advisory would from and Local Committees the Authority advice to in providing for be responsible would These committees Advisory Committees. c operational issues. detailed subject- and area-specifi more to relation Advisory Board to the Minister for the Environment and Heritage. The Advisory Board would provide the The Advisory provide would Board and Heritage. the Environment Advisory the Minister to for Board Park and use protection to the Marinerelated c issues Minister access advice on specifi with a means to stakeholders. An Advisory and other relevant Board Indigenous, environmental community, business, from ndings of the with the fi is consistent d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d These terms ofreferenceThese terms Committees shouldestablishthattherole isto oftheLocal Advisory Marine ofreference shouldestablishclearterms The Authority andappointmentprocesses for thecommittees. ofitsmanagementframework. willemploysuchconsultative committeesAuthority aspart Instead, itissuggested thattheMinister’s expressthatthe Statement ofExpectations anexpectation however, basis, haveasthestructureofconsultative groups astatutory may needto changeover time. Committees shouldbeformally to constituted theAuthority. ascommittees reporting They shouldnot, The ReviewPanel fertilisation’ committees. between some committees isnotappropriately representative andthatthere shouldbebetter provision for ‘cross- membership isatpresent oftheAuthority, thesoleresponsibilityofChairperson thatmembershipof processes ofthecommittees are currently unclearandlackformality. More specifi includedthat cconcerns anumberofsubmissionsto theReviewsuggestedNevertheless, thatresponsibilities andappointment isgenerallyresponsivethat theAuthority to committee recommendations. committees provide aneff Committeeswell. ofthesecommittees, are Members Advisory working inparticular, feel thatthe CommitteesSubmissions toandReef theReviewgenerallysuggestthatLocal Advisory Marine so providing Committees adirectconduitfor into management. inputbytheReefAdvisory issues. Committee, inthecorresponding issuegroupThe Director ReefAdvisory ofeachcritical participates structuredinto isinternally managementgroupsThe Authority thatcorrespond to eachofthesecritical Tourism andRecreation. • • Fisheries Water andCoastal Development Quality • Partnerships and Indigenous Heritage Conservation, • relation to thefour issuesidentifi bythe edascritical Authority. Theyare namedcorrespondingly, as follows: Committees provideThe ReefAdvisory aforum inputfrom forrelevantinterests stakeholder expert in relevant region whoare userorinterest independentorrepresent groups. particular Committees membersfrom comprise the management decisionsandactions.Local Advisory Marine develop proposed solutions andactions,provide feedback andotheragencieson to theAuthority together diff Committees provideLocal Advisory aforum Marine for engaging localcommunities. They bring Park. management oftheMarine Committees in2001asmechanismsforAdvisory involving inthe localcommunitiesandstakeholders Committees 1999and2005four between established11Local Advisory Reef The Authority Marine Committees andLocalReef Advisory Committees MarineAdvisory Board ayear. would to beexpected meettwice Advisory Offi Board,to theAdvisory asrecommended bythe attend Board meetingsasanobserver. shouldprovide Furthermore, secretariat support theDepartment order toIn provide adegree ofindependence, shouldnotbeamemberoftheBoard, theAuthority but communities, commercial operators, recreational bodies. users, theresearch andconservation community Minister. The Board shouldprovide for broad representation associated withIndigenous ofstakeholders of reference for theBoard. Appointmentsto the Board shouldcontinueto betheresponsibilityof Board shouldbenon-statutory.The Advisory shouldprepareThe Minister andpubliclyrelease terms

1 ce Holders 3 1 erent segments andobjectives, ofcommunitiesto discussand identifylocalconcerns (Uhrig 2003). Meetings of the Advisory Board shouldbeconvened oftheAdvisory 2003).Meetings bytheChairperson. (Uhrig The recommends ective meansforective to management,are contributing appropriately resourced and that the Local Marine Advisory Committees and Reef Advisory Committees andReefAdvisory thattheLocal Advisory Marine Review ofCorporateReview Authoritiesand Governance ofStatutory Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:40:59AM 2 / 9 / 0 6

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provide area-based advice to the Authority, and the role of the Reef Advisory Committees is to provide of the Reef Advisory provide and the role is to Committees Authority, the advice to area-based provide members should be and dismissal of committee Appointment on operational issues. issues-based advice all members of the Authoritythe responsibility of collectively rather than the Chairperson alone. the for and appointment processes the terms reference of transparency and accountability, promote To meetings The Authority of committee also publish minutes could publicly available. should be committees on its website. the committees from and copies of advice Advisory Reef Committee that the Fisheries the Review suggested some submissions to Finally, the Marineduplicates Advisory Department established by the Queensland Committees of Primary in this report, discussed elsewhere the Authority As has an important Industries in role and Fisheries. Barrier sheries of the Great and management as part matters care for the responsibility of its fi to relation Reef Advisory Fisheries considers a separate therefore The Review Panel as a whole. Reef ecosystem at directed this report 9 of recommendations Chapter provides However, appropriate. Committee fi sheries consultative to improve be scope may There sheries management. collaboration on fi improving arrangements as a part of this. d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:40:59 AM Great Barrier Great ectiveness of the the Authority the assess to cult and complex task for (s. 7(1)(b)), a key (s. function of the Authority carry is to out . The mechanisms through which this research is delivered, however, are are however, is delivered, which this research The mechanisms through . erent research fi elds. This research covers a broad range of topics and is range of a broad covers research This elds. fi research erent Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 4 3 1

This chapter considers the extent to which the Great Barrier Authoritythe extent considers which the Great Reef Marine and its networkThis chapter to of Park and the Marine managing Park needs for information future meet positioned to are organisations research use. and continued multiple its long-term protection for providing approach 11.1 Current Under the socio-economic information 11 reporting Research, and socio-economic This makes it a diffi dispersed and somewhat informal. and current to aligned are priority timeframes, of research and pitch extent which the subject to matter, ecosystem. of the long-term protection needs for future that has been of particular shows a mix management of the Marine to Recent research Park relevance biodiversity and population monitoring and of baseline data collection, on key information pressures, impacts of extractive uses (Table 13). and/or arrange for ‘research and investigations relevant to the Marine to Park’. relevant and investigations ‘research and/or arrange for Barrierto the Great Reef undertakenrelevance of research year, cant amount of each is a signifi There encompassing a range of diff undertaken users. and utilised by a wide variety for of public and private research In and monitoring. 2004–05 this was around some direct supportThe Authority provides research for the Authority primarily accesses $5 million in cash and in-kind support However, some 90 projects. for networks, partnerships management through Marine publications. to and formal Park relevant research 12. Table The Authority partners, has 18 key as set out in research very from covering a wide range of subjects needs are and disciplines, broad, research The Authority’s socio-economic Barrier monitoring the eff understanding of the Great Reef to 2003 Plan Zoning Reef Marine Park d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d The Authority currently prepares The Authority reports—the two services/science/research_priorities/database/). projects againsttheAuthority’s identifi ed (www.gbrmpa.gov.au/corp_site/info_research priorities: managementinformationweb-accessible system thatmapsinformation onexistingandplannedresearch programmes70 monitoring ofrelevance to implemented the2003Zoning a 2005,theAuthority Plan. In get better leverage through consolidationandintegration ofeff To deliver theseresearch ofresearch needs, isengaging theAuthority withitsnetwork providers to 14). (Table importance 274 research questionsacross 22themes, with21ofthequestionsbeingidentifi edasofcritical Table 12:Great BarrierReefMarinePark Authority key research partners Barrier Reefandoutliningexistingmanagementresponses toBarrier pressures. are largelyreports descriptive, beingdirected towards onthestate oftheGreat informing third parties ofAustralia’s part Committee—as Heritage responsibilities underthe World Convention. Heritage These to theUnited NationsEducational, report a periodic Scientifi cand Cultural Organisation (UNESCO) World and ManagementoftheGreat BarrierReefMarinePark 2005 The Authority’s current research needsare identifi edinthepublication

National Oceanic and Atmospheric Administration andAtmospheric (USA) National Oceanic Queensland Museum Australian Museum Queensland Environmental Protection Agency andFisheries Industries ofPrimary Queensland Department Sydney University Australian NationalUniversity ofQueensland University oftheEnvironmentEnvironmental andHeritage) EconomicsUnit(Department Bureau ofMeteorology Access Economics Fisheries Research Corporation Development Australian Research Council CSIRO James Cook University of Coral Biodiversity Reef (AustralianARC Research Council) Centre ofExcellence Sciencefor inInnovative SustainableManagement Science Australian ofMarine Institute Sciences Research Facility 2005–06 Cooperative Research Centre for Reef theGreat Barrier World and Area, Heritage supersededbyMarine Tropical

1 3 5 State oftheGreat BarrierReefWorld HeritageReport (GBRMPA 2005b). This publicationidentifi es ort, for example, bystreamliningort, the Review of the the of Review Research NeedsfortheProtection Great MarinePark Reef 1975 Barrier Act and 112/9/06 10:40:59AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:40:59 AM on biodiversity Biodiversity baseline Pressure Biodiversity baseline Impact of extractive use on biodiversity Biodiversity baseline baseline Pressure Pressure James Cook UniversityJames Cook EconomicsAccess UniversityJames Cook Biodiversity baseline CRC Reef Economic value uses Institute of MarineAustralian value uses Economic Science InstituteCRC of Reef/Australian Marine Science University /Australian James Cook Institute of Marine Science Impact of extractive use CSIRO/Queensland Department of Primary Industries Primary Industries Institute of MarineAustralian Science/GBRMPA Institute of MarineAustralian Science University of Queensland Pressure 6 ects quality reefs of water on inshore ects experiment of trawl ect of line fi shing experiment ect of line fi and prey on trout ect Zones of Green 3 1

Long-term monitoring programme Long-term 2004) H. et al. (Sweatman Eff K. 2003) 2005, McCulloch al. M. et et al. (Fabricius Dugong air survey analysis and historical catch 2001) (Marsh H. et al. Eff 1998) I. et al. (Poiner shelf transectCross surveys transect study Chlorophyll (Williams 2002) B. studies River discharge M. 2003) (Furnas bleaching change and mass Climate Department Queensland of 2003) T. 2004, Hughes (Hoegh-Guldberg O. Economic and fi nancial value monitoring Economic and fi 2005) Economics (Access studies Tourism 1997) et al. P. (Birtles 2002, Pearce R. et al. Eff 2004) et al. (Mapstone B. IssueEff K. 2003, Davis 2004) (Graham N. et al. et al. Institution type Research

Table 13: Table management Park Marine informed has that research Key d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d • analysis of the full range of biophysical, social and economic factors necessary to support consideration to support analysisofthefullrangebiophysical, necessary socialandeconomicfactors • assessmentoffuture andpressures. risks This information enablesconsiderationofthelevel of • ofmanagementmeasures Park regular oftheuseMarine monitoring andtheperformance • information. inthepublicdomain. source andaccountability oftransparency This willrequire three fundamentalsetsof infuture asa willbeofparamountimportance andrisk regular ofinformation availability onperformance degree ofinterest in,andsometimesscepticismabout,theprotection ofthiscomplexecosystem. The Reef,The Great Barrier asa World Area, Heritage isaniconfor Australia andtheworld. There isahigh manner to protection thelong-term Reef. oftheGreat Barrier amount ofindividualprojectandprogramme fi ndingsandapplythose ndingsina holisticandintegrated fi relevant, robust andtimelyinformation. Equallychallenging istheneedto draw together thesignifi cant theresearch ofabroadfacilitating andtracking rangeoforganisations inorder to ensure ithasaccessto resources, andplanning. expertise currently hasacomplextaskinidentifying,The Authority aligning, systems research requires ofbiological andmonitoring longleadtimes, andsocio-economic Undertaking Future research, monitoring andreporting 11.2 Table 14: The research needsoftheGreat BarrierReefMarine Table 14:

• monitoring thehealthofmajorhabitattypes. • monitoring orimprove• managementstrategies ecosystem thatcanbeusedto resilience support • managing diseasesandintroduced pests ofclimate changeandmeansofmitigatingthoseimpacts impacts • thelikely turtles • theprotection ofmarine management understandingasaninputto multiple-use • improving socio-economic andray to populationsfrom shark • therisk fi shingactivities • fi ondugongsandpotential management impacts responses sheries • theeff andpollutantloads catchment• thelinksbetween activities • enhancingfi shing, whilstminimisingenvironmental and tourism recreational impacts opportunities • monitoring theeff • monitoring terms socio-economic theeffi • monitoring eff Parkto theprotection ortimeframeover anduseoftheMarine whichtheinformation andtheurgency isrequired to be 274 research questionswere identifi ed. oftheinformation Thesequestions basedontheimportance were thenprioritised requirements requirements. andotheraccountability reporting Performance andtheAuthority’s Indicators Key From this, Park, theAustralian Government’swise useoftheMarine NationalResearch Priorities, NationalState oftheEnvironment of theGreat BarrierReefMarinePark 2005 hasidentifiThe Authority editscurrent research needsinthepublication

1 3 ective andleadtoective outcomes. From this, questionswere 21critical identifi cover: ed, whichinsummary of any changesto thelevel, areaofprotection. ortype action further protection oftheecosystem thatisrequired over andwhetherthere thelongerterm isaneedfor andthewiseuseobjectives to conservation settings are outcomes deliveringexpected inregardtargeted and policy andshowwhether regulatory resilience, andcommercial biodiversity useoftheecosystem. This willenablemanagementeff against baselinesandtrends over timesoasto provide anunderstandingoftheoverall health, 7 ectiveness ofcurrentectiveness andplannedfi managementstrategies sheries Park Authority ciency andeff ciency ectiveness ofthe ectiveness ectiveness oftheRepresentativeectiveness Areas Programme inecological and Reef Water Protection Quality Plan . These needswere identifi edinlightofthecurrent needs for protection and Research NeedsfortheProtection andManagement Review of the the of Review Great MarinePark Reef 1975 Barrier Act ort to be ort 112/9/06 10:40:59AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:00 AM be tabled in that there be a regular and be a regular that there Outlook Report , produced on a fi ve-yearly basis. on a fi , produced that the recommends a process of peer review by a Science Panel by a Science Panel of peer review a process that this assessment be delivered through a through that this assessment be delivered recommends recommends recommends . Given the formal nature of the report as proposed, its broad its broad of the report nature as proposed, the formal . Given Great Barrier Reef Marine Park Outlook Report Park Barrier Reef Marine Great Outlook Report should provide information on the management of the Marine Park and the overall and the overall of the Marine on the management information Park should provide and the adjacent Marine Park management of both the Commonwealth inform would plans and plans of management zoning including ect of management measures, Outlook Report Outlook Report 8 biodiversity, ecosystem health and resilience and social and economic systems health and resilience ecosystem biodiversity, 3 1

Parliament and published, to ensure full accountability in the public domain. The report should be a key full accountability public domain. ensure in the to and published, Parliament by governments. issues consideration of broader plans and the zoning changes to future input for reliable means of assessing performancereliable in an accountable of the Marine long-term in the protection Park The Review Panel manner. and transparent Obtaining this information will require long-term research to be carefully specifi ed and planned. ed and planned. It will also specifi be carefully to long-term research will require this information Obtaining The Authority’s and the necessary organisations depend on the availability funding. of capable research performingtoward this step is a positive requirements research cation of its long-term identifi recent nement, refi ed will need considerable The 21 priority questions identifi and monitoring role. research what is essentially non-commercial research. funding for secure to however, University in Queensland would James Cook at located Facility Sciences Research Tropical The Marineand were of this work, components if the research good’ ‘public key the for of funds source be an appropriate Research part was established as Environment of the Commonwealth This Facility targeted. appropriately announced in 2004. Under this Programme, Government initiative an Australian Programme, Facilities ve-yearto support public 2005 period from environmental a fi over available $40 million will be made Wet the including rainforests tropical Barrier Great the Reef and its catchments, to related policy research by the Department is administered of The Programme Strait. Torres and the Heritage Area, World Tropics and Heritage. the Environment the Authority manage and coordinate will need to of research, a major provider a user rather than As the Authority has a key in synthesising role Additionally, role. house’ ‘clearing performingresearch, a central fi to operational management and to inform ndings ndings and value-adding by integrating fi research will also contribute to role This as a whole. on the Marine Park an assessment of the pressures provide and enable conservation, level at a national and State issues social and consideration of broader-based economic impacts assessed. be to the Review Panel bringIn to elements together, all these order • eff and biodiversity including health, resilience the condition of the ecosystem, • the • including those external on the ecosystem, the Marine to risks Park and pressures • factors social and economic regional biophysical, • data. and qualitative based on quantitative the Marine the outlook for Park The the Review Panel disciplines, scope and many statutory requirement for a statutory for requirement The longer- assessment of the risk-based and quantitative as a qualitative as well condition of the ecosystem, term outlook. such a report In include analyses of: would particular, • and non-commercial use of the Marine the ongoing commercial Park • use, and recreational baseline and benchmark time against over data, including commercial trends issues by The report consideration of broader Queensland coastal marine also inform park. would and the long-term the monitoring and assessment of the ecosystem together governments by drawing required. protection of and form the level to of relevance social and economic research biophysical, be responsible would organisations, many products from of research as the interpreter The Authority, the production of the for appointed by the Minister for the Environment and Heritage. Publication on a fi ve-yearly basis is proposed on a fi Publication and Heritage. the Environment by the Ministerappointed for as a suitable interval a report taking time of the biological for of this scope, account the response into also The Panel being assessed. and human systems d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Authority inthedevelopment ofthe Authority fi were impacts notadequately considered shing-related bythe businessessuggestthatsocio-economic well covered too andoften narrowly focused. For example, commercial fi shingbodiesandanumberof hasbeenlargelythe Authority focused onbiophysical less issues, withthesocialandeconomicaspects A numberofsubmissionsto thisReviewsuggested thatto date theresearch andanalysisutilisedby information andanalysis Socio-economic 11.3 the ParkMarine infuture, theReviewPanel closelyexaminedtheprocess associated withthedevelopment of To ofanalysisanddatathat willbemostusefulininforming themanagementof helpidentifythetype dataandzoning development Socio-economic surveys aspopular recreational fisurveys shinglocations. illustrates thatthezoning soughtto avoid areas thathadbeenidentifi edinQueenslandGovernment sited to avoid impinging onareas withhighaggregate economicvalues. Similarly, 17(inChapter 6) Map (in Chapter 6)illustrate, for example, thatareas closed to commercial fi shing were, asfarpossible, data to 12–15 accommodate impacts.Maps economicandsocialusesto minimisedetrimental of The casestudyandmapsinChapter utilisedthiskind to 6demonstrate whichtheAuthority theextent information received through thepreparation during submissionsto ofthe theAuthority • provided information Safety Authority bytheAustralian onshippingactivities Maritime • Park information operationswithintheMarine ontourism derivedthrough permits, plansof • recreational fi data shinglogbook andsurvey • commercial fi shinglogbookand SystemMonitoring data Vessel • datafor theseanalyses, including: ofsocio-economic on awidevariety ofthezoning proposed. socialandeconomicimpacts and assessmentofthelikely drewThe Authority analysiswasutilisedasatool were theidentifisocio-economic cationofappropriate zone locations thisprocess,During which stretched overofsixyears, aperiod mainareas thetwo inwhich the development ofthe2003Zoning Plan. in bydrawing onsomeofthelessonslearned Park, inparticular management andprotection oftheMarine analysescouldbestbeusedinthefuture The following considerstheway socio-economic section Park from thoseofthecatchment asawhole, for exampleinrelation to thevalueoftourism. actual levels ofusage.actual Also, itdiffi thedatasetsavailable make Reefare usesoftheGreat basedon Barrier Estimates andnon-extractive ofvalueforharm). extractive in order to obtainbetter scientifi cinformation, whenthedelay may result inirreversible environmental example, or ofcultural, Indigenous ‘quasi-option’ values(theselatter considerthevalueofdelaying action ofeconomicvaluationsrepresent transactions. majority market There have beenfew assessments, for inquantitative terms, hasalsobeenlimited values,andthusthe Assessment particularly ofnon-market to undertake. assessment ofalleconomicvaluesacross theregion resource isnotavailable andwould intensive bevery sound. To date, however, research hasfocused onindividualelementsorsectors. Acomprehensive catchment area concludedthatoverall theapproaches andmethodologies usedintheanalyseswere Park oftheMarine andits 1987and2005onaspects between analysesconducted 20 socio-economic oftheEnvironment ofsome andHeritage bytheDepartment A literature review undertaken rezoning Park oftheMarine whichcameinto force inJune2004(seeChapter 6).

1 3 2003 Zoning Plan. management andEnvironmental Charge Management data 9 Great BarrierReefMarinePark Zoning Plan 2003 Great BarrierReefMarinePark Zoning Plan 2003 . cult to disaggregate valuesfor theMarine Review of the the of Review Great MarinePark Reef 1975 Barrier Act , thecomprehensive 112/9/06 10:41:00AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:00 AM ects shing ectively exclude exclude ectively ect. introduced new regulations for recreational recreational for new regulations introduced ected by the 2003 Zoning Plan were the inshore the inshore were Plan ected the 2003 Zoning by Gladstone, Townsville and Cairns. and Cairns. Townsville Gladstone, Coral Reef Fin Fish Fishery Management Plan Fishery Fish Reef Fin Coral 0 4 1

During the preparation of the 2003 Zoning Plan, limited impacts were anticipated for the majority for of anticipated impacts limited were Plan, of the 2003 Zoning During the preparation report in 2003, a Australia Pty (2003) based on boat ramp For example, by PDP Ltd shers. fi recreational Plan on Zoning that the impact time estimated available at the of the 2003 shing location data and fi fi shing recreational regularly frequented to 5 per cent of would be a closing of only 1.3 shing fi recreational fi shing recreational is no direct employment in the there shing sector, Unlike fi locations. the commercial localised eff industry more be any boat charter) would (excluding there whether and assessment as to Assessment of impacts associated with recreational fi of impactsAssessment recreational with associated that the introduction views in submissions and consultations of the 2003 Zoning heard The Review Panel fi shing, impacts to participate cant negative wishing on individuals recreational in had caused signifi Plan parts, spare tackle, bait motors, boats, example, for impacts as indirect as well supplying, on businesses reefs c access specifi to being able relied on that had shing businesses In some cases charterand berley. fi fi was shing to be concerned where locations said at the lack of alternative were shing fi now closed to aff most were that shing areas fi The recreational permitted. and shoal areas Innisfail and the reef and Cairns regions Townsville, Whitsunday, in the Rockhampton,areas in the Capricornia off Bunker areas reef was not undertaken detailed analytical work would More Plan. of the 2003 Zoning during the preparation impact any of disaggregate to in order considered, range of parameters with a broad been needed, have y below. factors other concurrent such as those discussed briefl from Plan the 2003 Zoning In looking it is important Plan direct and indirect impactsthat understand at any the 2003 Zoning of to and in the waters in inshore the shore, from estuaries, inlets, shing mainly occurs in rivers, fi recreational fithe vefrom kilometres than shing occurs more fi In only 6 per cent of recreational Queensland, mid-reefs. which fall within the Queensland fi waters, shing in inshore are therefore, shers, fi coast. Most recreational mark), Barrier (between high and low water the Queensland national parks MarineGreat Reef Coast Park Barrierregulated shing in the Great Reef is fi Barrierand the Great Reef Marine such, recreational As Park. zoning plans. Commonwealth and and State sheries management legislation Queensland fi through the shore shing takes place from National(The fi 55 per cent of recreational In Queensland approximately Survey come under State and Indigenous thus predominantly Recreational would 2003) and Fishing fi ve less than vessels that are the majority boats, have (94 per cent) sh from Ofregulation. people who fi proportion Thus a high five of a boat ramp. kilometres shing within fi restricted to largely long and are metres Parkzoning and State Barrier both the Great Reef Marine where areas, shing occurs in inshore fi of recreational shers fi small proportion 5.5 per cent) of recreational (around A relatively complementary apply. would zoning to access the inner and outer able are therefore fi long and ve metres boats over sh from fi in the catchment an eff changes could have zoning Marine Park the Commonwealth where reefs participation in trend in recreational downward is the overall be considered Another factor to fi shing of recreational in has been a long-term decrease there as elsewhere, shing. Queensland, In fi was 1 per cent per annum since 1996. In outside the catchment the period 2004 the decrease 2001 to 5 per cent per annum, with a much greater Cairns, excluding 4 per cent per annum and in the catchment, shing saltwater fi for The trend (Hunt 2005a). of 16 per cent per annum in the Cairns region decrease and of 2 per cent outside the Marine the period 2004 was a slight increase Park boats over 2001 to from the number of recreational of 2 per cent per annum within the Marinea decrease Interestingly, Park. by 8 per cent, along with year, the previous over in 2004 increased in the catchment boats registered complementary sales. motor shers Other fi be taken factors of the ability account include consideration that need to into of recreational in which gear limitations eff Zones’ ‘Yellow location and the introduction change of to an Plan was implemented, Zoning shing. duringIn addition, 2004, at the time the 2003 fi commercial In 2004, shing trends. fi on recreational impacted negatively of 20 per cent in fuel prices have may increase the Queensland fi shers, which further shers, to the complexity added of the new environment. fi d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d those wishing to exit the industry, support for employeesthose wishingto exittheindustry,aff support assistance for thecommercial fi canincludeprovision shingsector for thepurchase of shinglicences for fi setoffactors. For isshapedbyadistinct circumstances andthequantumofpackage example, directed at helpingaff Any package surrogate for theestimate ofcostproviding fi nancialassistance. Plan. estimates aboveThe economicimpact of$2.5millionand$10.3therefore cannotbeused asa ofthehighlevel aggregate oftheimplementation2003Zoning economicimpacts that undertaken willrequire adiff costsofanassistancepackage estimation ofthelikely thegovernmentwishesto provide.the circumstancesandlevel ofthesupport andthetype Thus an form, signifi andtherefore adjustmentassistancecanvary thecost,ofstructural cantlydependingon region, ratherthanallowingautonomous adjustment,iscontingentonthenature oftheimpacts. The Consideration bygovernmentoftheneedfor fi nancialassistance for businessesandcommunitiesina the Plan would itscosts. outweigh Statement for the2003ZoningImpact Plan concludedthattheenvironmental andeconomicbenefi tsof provides for aframework weighing upthecostsandbenefi measures. tsof regulatory TheRegulatory the 2003Zoning Plan. Statement, which Impact This advicewaspresented ofaRegulatory inthecontext to result likely from industries theimplementationof ofkey decrease intheannualeconomicactivity presented for to theMinister theEnvironment andto Parliament andHeritage asestimates ofthe These GVA andGVPfi gures, alongwiththeoutcomes oftheotheranalysesmentioned above, were processors, are notaccounted for byeithermeasure. businesses suchasfuel, netandboatsuppliers. ondownstreamThe impacts businesses, suchasseafood Because thesecostsare included, however, theestimate provides someindicationofupstream eff do notrefl thelostprofi ect tsofaff andbeamtrawl, wasintherangeof$13.5toincluding collection $14million. theimpact These GVPfi gures a result oftherezoning. The Bureau ofRuralSciencesestimated thatfor allfi Marine inthe sheries Park, the total value offi shcaughtbycommercial otter trawl, net,lineandcrab Marine inthe sheries as Park fi toby theBureau beadecrease ofRuralSciencesreport ofapproximately $10.3millionperannumin value oftheoutputproduced byaff were alsoestimated oftheGross interms Impacts Value ofProduction (GVP),thatis, thechangeintotal only considersthelostprofi tofaff down-stream ofcommercial fi shers, for example shingequipmentsuppliersandseafood fi processors, but less inprofi teach year. This gure doesnotinclude anyfi up-and onindustries ow-on economicimpacts fl result oftherezoning commercial fi shersoperatingthroughoutMarine the would derive$2.6million Park PDP Australia to beupto $2.6millionperannumonaGross Value Added (GVA) otherwords, basis. In asa commercial fi industry. shingandthe tourism For commercial wasestimated by shingtheimpact fi estimateThe three thehigh-level aggregate reports ofthe2003Zoning economicimpacts Plan on (GBRMPA 2003c),were tabledinParliament withthefi nal2003 Zoning December 2003. Plan in of Tourism Research (BTR)(2003). oftheircontents These three together reports, withacoveringsummary Plan—these were donebyPDPAustralia (2003),theBureau ofRuralSciences(BRS)(2003)andtheBureau ofthedevelopment ofthe2003Zoning aspart analyseswere impact undertaken Three socio-economic commercial fi Economic assessments, fi operating atthetime. businesses, aswell astherelative signifi canceof2003 in Zoning Plan impacts relation to otherfactors ofthe2003Zoning theimpacts Plan onrecreational to ascertain fibeen necessary shersandassociated conclusionthatcanbedrawn fromA key theabove isthatamore detailedassessmentwould have

1 4 1 sheries impacts ected ected fi shers. ected fiected shers, astheyincludethecostsincurred incatching the sh. fi ected business and communities adapt is tailored to the particular businessandcommunitiesadaptistailoredected to theparticular ected industries. Forected commercial fi shing, wasestimated thisimpact nancial assistance and ected byanemployer’sected exitandbusiness Review of the the of Review erent andlevel ofanalysisto type Great MarinePark Reef 1975 Barrier Act ects ects on 112/9/06 10:41:00AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:00 AM ort . ected ected inshore inshore ected ected in recent , the decision to provide structural provide , the decision to Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Park Barrier Reef Marine Great ected fi sheries operations. During this time, for example, a number of for example, During sheries this time, operations. ected fi ected local seafood processors and distributors. In addition there were concurrent concurrent In were and distributors. addition there processors ected local seafood Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great 2 4 1 ected the economic viability of fi shing and related up-and down-stream businesses. Determining the up-and businesses. related down-stream shing and ected the economic viability of fi

times by changing domestic and international seafood markets. Growing investment in aquaculture and in aquaculture investment markets. Growing domestic and international seafood times by changing particularlyimports Australia, into been keeping south-east of seafood the price from have received Asia, Queensland-caught down (Queensland Government 2005). Increasing export for seafood live demand for aff would also have sh fi and heavy industry the resources labour from for competition in fuel prices and strong increases Plan Zoning sheries at the time the 2003 on fi placed pressure have Each of these factors would sectors. has been a 20 per cent there Fishery, Trawl Otter in the East Coast example, For was being introduced. the period in actual 2004 and a reduction of 38 per cent over 1996 to eff reduction in annual catch The impacts a range of regulatory of all these (Queensland Government 2005) due to and market impacts. been cumulative. have factors would commercial crabbing and netting as well as recreational fi shing. One estimate (Hunt 2005a and 2005b) One estimate shing. fi as recreational crabbing and netting as well commercial places the economic impact of one of the above-mentioned and possibly changes as at least equivalent to Plan. about by the 2003 Zoning times that brought than three more also been aff businesses have onshore related sheries and fi as these changes, well As In order to determine the scope and level of assistance that would be appropriate, the Australian the Australian be appropriate, of assistance that would determine and level the scope In to order to put in place shing sector fi work with the commercial it would 2003 that Government announced in late nancial assistance package. to undertakePanel an It established Independent task. this A base quantum a fi report. In June 2004, following pending the Independentof funding of $10 million was announced, Panel’s a comprehensive to Government agreed the consultation with the sector, the Independent Panel’s business land-based businesses that included licence buyout, shers and package fi commercial for At the end of 2005, the funds available assistance. with regional together restructuring and exit assistance, package $87 million. and comprehensive were this broad-based for In considering the socio-economic of structural and the provision Plan, impacts of the 2003 Zoning have compounding factors that would it is important were adjustment assistance, that there note to aff be and it would this situation is problematic factor contributedextent has to which each separate to of the Marine Park. such as the rezoning single factor, impactincorrect attribute any the total to to concomitant several were (1997–2003), there Plan Over period of the 2003 Zoning the development of aff have that would developments warnings A series of investment region. in the introduced were sheries management controls fi major State fi sheries A over-capitalised and fully exploited. sherieswere concernswas issued due to that certain fi Fishery in 1999 with further being controls Trawl the East Coast for management plan was introduced the major for in 2001. In was introduced allowable catch introduced 2004 a 37 per cent reduction in total A complementary coastal marine of the State park, zoning Fishery. that introduced Fish Reef Fin Coral aff have at this time and would also occurred of 20 per cent of the coastline, protection adjustment assistance in relation to the rezoning and the nature of the assistance provided were separate separate were of the assistance provided and the nature the rezoning to in relation adjustment assistance the context assistance was made in of a provide The decision to Plan. of the Zoning the approval to (Australian and Displaced Fishing Government policy Areas general Australian on Marine Protected was tabled in Plan time the 2003 Zoning which was under consideration at the Government 2004), shing the concerns of the fi It recognised Government this time that the Australian Parliament. was at sheries industries impact land-based sector and associated in respect of the cumulative fi of Queensland changes and the management and coastal zoning restructuring assistance for those wishing to stay. Business restructuring Business assistance can assistance or exit stay. those wishing to restructuring for assistance net and tackle this case, in such as, also be extended both up- land-based businesses, to and downstream help aff to also be provided assistance projects may Regional processors. suppliers and seafood communities establish new avenues of investment and employment. of investment new avenues communities establish In the the case of d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d contribution bytheindustry. contribution $22.5 million,provided cooperatively bytheAustralian andQueenslandgovernments, aswell asa Coast Trawl Fisheryin1999.Bothoftheseinitiatives byfi were supported nancialassistance, totalling development ofDugongProtection Areas in1997andthefi managementplan sheries for theEast to deliver integrated changesto fi management,specifi park andmarine sheries callyin relation to The Australian have andQueenslandGovernments together occasions ontwo inthepastworked from itsjurisdiction. the QueenslandGovernmentinrelation to thefi managementchangesstemming park andmarine sheries only inrelation to rezoning bytheAustralian Government.Financial assistancehasnotbeenprovided by for adjustmentisbeingprovided structural impacts.Governmentsupport the combinedsocio-economic there wasnointegrated zoning park, oftheState assessmentof coastalmarine and thecomplementary therezoningbetween Park, theintroductionofQueenslandfi oftheMarine managementchanges sheries aff management actions inrelation addition,coordination to theAustralian between In andQueenslandgovernmentsisimportant for ofweighing thepurpose upitseconomiccostsandbenefi ts. measure, from the implementation ofaregulatory inannualeconomicactivity impact estimating thelikely assistance to requires asector adiff lessonsthatcanbedrawn fromKey thissetofcircumstances are thattheconsiderationoffi nancial Afi peer-reviewed ve-yearly • ofzoning Development shouldbebasedonasetofpublishedOperationalPrinciples approved bythe • ofany zoning analyses shouldbemadeaformalplanprocess. part Socio-economic They shouldbe • analyses shouldbeafundamentalresearch priority. Socio-economic • Review Panel inthisandotherchapters, insummary, are: management andto improve ofdataandknowledge. sharing The relevant recommendations ofthe recommendations alsoaimto establishamore integrated approach to ecosystem andfi sheries will beregularly available andcanreadily ofdecisionmaking. form anintegral part This report’s The recommendations seekto throughout provide thisreport inwhichsuchinformation aframework Park. management oftheMarine information relevant to Reefasaninputto theGreat of accesstothelong-term socio-economic Barrier environment may involve inthecoastandcatchment area. action highlighttheimportance These factors of alternative andcompetingusesasabasisfor resource addition,protection ofthemarine allocation. In are regulated future, byQueensland. In measures to ecosystem protect willrequire themarine assessment and,zoning park intheState withinbothparks, fi coastalmarine that managementarrangements sheries Park to ReefMarine comprehensiveThe Great isnowsubject Barrier zoning thatiscomplemented by Future considerations • The Great Barrier Reef Ministerial Council shouldconsiderbringing together therespective ReefMinisterial TheGreatprocesses Barrier • • The Ministerial Council shouldestablish astandingcommittee ofoffi TheMinisterial •

1 4 and competingenvironmental, socialandeconomicvalueswillbeconsidered. Minister, parameters andobjectives, whichwould includingtheway setoutpolicy inwhichalternate options are refi ned. to andavailable consultationonmajorzoning prior planchangesand berevised asthe undertaken under the for fi managementbytheQueensland Government,approval sheries ofmanagementarrangements information. socio-economic key and develop and manage key policy initiatives. policy and develop andmanagekey Park bytheAuthority. 3 Environment Protection Conservation Act andBiodiversity 1999 ecting fiecting shersand related businesses. coordination Whilethere wassomepolicy Outlook Report Report Outlook erent ofdetailedanalyticalassessmentfrom type thatrequired for on the Marine Parkon theMarine shouldbeproduced andshouldinclude Review of the the of Review cials to assesspressures andrisks and management of the Marine andmanagementoftheMarine Great MarinePark Reef 1975 Barrier Act 112/9/06 10:41:01AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:01 AM or the . (s. 6). (s. Financial Management and Accountability Act 1997 Act Management and Accountability Financial key departments agencies in the following ways: er from and executive In the section light of this, considers whether ective and ethical use of those resources. Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great 6 orders of the Executive arm of government (specifi cally the Governor-GeneralCouncil). in arm of government (specifi of the Executive orders understood by those responsible for management for by those responsible understood accountability. 4 1 ective engagement of the Queensland Government in governance and management. This is presently This is presently ective of the Queensland Government in governance and management. engagement cient, eff cient,

Commonwealth Authorities and Companies Act 1997 Act Authorities and Companies Commonwealth Statutory authorities diff • by administrative created departments are agencies whereas and executive by statute, created They are 12.1 the Authority of legal nature The Is a statutory authority appropriate? namely by legislation, a public sector entity that is, created authority’, ‘statutory The Authority a is currently the 12 framework management The of the Great management framework for the institutional and organisational discusses This chapter nancial management corporate structure and fi the legal nature, in particular, Barrier Reef by the Authority, framework of the Authority. they establish the In other words, governance of the Authority. basis for the These factors provide direction and expectations of performance and communicated; set are which strategy, framework through performance and allocated; are accountability. and is subject and power oversight to responsibilities roles, ensuring: by organisation the success of any for foundation an essential Good governance provides • and expectations the purpose of the organisation of performance and are clear and appropriate are • and clearly allocated understood appropriately are and power responsibilities roles, • linked performance transparency and responsibility are to powers and through and review nancial framework of the corporate structure and fi sections consider the legal nature, The following Authority ensuring Another key with a view to good governance arrangements. objective is ensuring the eff the nomination by Queensland of members of the Authority through among other means, facilitated, by the Ministerial and by joint day-to-day Council Committee, management and the Consultative further 9 provides Chapter arrangementsarrangements. details of collaborative with Queensland in the Barriermanagement of the Great Reef. Authority. It considers the issue of what of the rst section discusses the legal nature of this chapter The fi to policies and objectives in relation the government’s type deliver of entity to is most appropriate in particular Barrier whether a statutorythe Great whether that Reef, if so, authority and, is appropriate authority corporate. should also be a body good The second section for the corporate considers structure of the Authority in light of the templates governance of statutory by the Uhrig and endorsed by the Australian authorities review recommended proposed arrangements governance Government. In some changes to are light of these considerations, and discussed. organisation As an fi nancial management and accountability. nal sectionfor considers arrangements The fi the nancial framework ensures it is important fi using primarily that the Authority’s public resources, effi the Authority subject should be the to d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d improving oftheAuthority. thetransparency, andperformance accountability isappropriate,authority notingthatthefull suite of reforms are recommended directed bythisreport at On balance, theReviewPanel on thezoning planprocess (Chapters 10and13). development ofthe2003Zoning Plan (Chapters 6and10)have beenaddressed byrecommendations the Authority’s to theDepartment. functions These viewswere largely expressed ofthe inthecontext suggested thatthisshouldbeaddressed andmovingresponsibilityfor bydisbandingtheAuthority possesses too muchindependenceandpower andisnotproperly accountable. submissions Some On theotherhand, anumberofsubmissionsto theReviewconsidered currently thattheAuthority degree ofindependenceinmanagementandregulation isappropriate. ReefandtheAustralianGreat Government’s Barrier commitmentto protection long-term indicate thata Thirdly, asnoted byanumberofsubmissionsto theReview, thesignifi cantnaturalandculturalvalueofthe in away that isdiffi facilitates this authority bytheQueenslandGovernment.Useofastatutory and collaborative participation Secondly, asdiscussedinChapter 9,eff management andregulation. to provide islikely effi authority continued useofaspecialisedstatutory regimeA uniqueandseparate regulatory hasbeenestablishedfor thisreason. Given thesefactors, indicate objectives aneedfor anintensivemultiple-use andspecialisedapproach to management. Firstly, thesize, anduniquenature Reefandthetaskof managing complexity oftheGreat for Barrier isappropriate. authority by aspecialisedstatutory Park, thefollowing ReefMarine considerationsindicate thecaseofGreat thatmanagement Barrier In anddefi Codifying therole oftheauthority Minister in ningthepowers ofthe relation to theauthority • from Separatingspecialisedactivities thebroader andmore complexrequirements ofaportfolio • structuressoasto promote effi outside departmental of government. They are to operate generallyestablishedwhereactivities itisdesirablefor particular onbehalf to thecommunity ofgovernmentorprovide functions services undertake authorities Statutory Theinvolvement ofgovernment,through is theMinister, authority intheoperationsofastatutory • aspecifi Theyare created to undertake assetoutinlegislation. cfunction(s), • The Authority isestablishedbythe The Authority Is abodycorporate appropriate? making under a single organisational name in the performance of statutory functions. ofstatutory underasingleorganisational nameintheperformance making which incorporation may berequiredwhich incorporation iswhenagroup ofoffi to Anothercircumstance sueandbesuedinitsownnametocapacity holdassetsinitsownright. in are requires authorities where generallyestablishedasabodycorporate theauthority the Statutory Australian Government. legally recognised having andliabilitiesseparate itsownrights, from privileges asanentity thoseofthe

1 4 provides adegree ofindependence. its role. to specialiseandfocusseparate funding for allowsmanagementoftheauthority on thosefunctions) withanarrow defi andproviding andclearly anauthority department (with nedrangeoffunctions limited by thepowers setoutintheenablinglegislation. 7 cult to achieve through a departmental or executive agency structure. orexecutivecult to achieve through agency adepartmental recommends Great BarrierReefMarinePark Act 1975 ective management of the Great Barrier Reefrequires managementoftheGreatective Barrier cooperative that continued management by a separate statutory thatcontinuedmanagementbyaseparate statutory ciency and/orobjectivity. More specificiency cally: ceholders needto exercise decision collective Review of the the of Review asabodycorporate, thatis, itis ciencies andconfi dencein Great MarinePark Reef 1975 Barrier Act 112/9/06 10:41:01AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:01 AM cient ects the allocation of resources Financial Management and Accountability Management and Accountability Financial is the ective and ethical use of public money, , members of the Authority are collectively responsible for for collectively of the Authority, members responsible are cient, eff cient, that the Authority continue as a body corporate. recommends Great Barrier Reef Marine Park Act 1975 Act Reef Marine Park Barrier Great , which is designed to ensure the effi ensure to , which is designed ective performance functions of the authority of the legislative by and accountable and is overseen 8 4 1

12.2 structure of the Authority Corporate templates Uhrig The of good governance for The Uhrig (Uhrig provide describes review 2003) to two designed structures statutory management. and executive authorities—a governing board of individuals selected governance is primarily by a board structure, provided Under the governing board and direction determines strategy The board experience. commercial business and relevant their for and supervises goals, nancial and holds functions and fi legislative on the authority’s delivering for implementation. management accountable for effi for is responsible management group an executive management structure, Under an executive Under the Under the Authority. for the framework nancial management fi appropriate the performance of regulatory and planning functions. It is therefore appropriate for decision makingthe performance for to appropriate of regulatory It and planning functions. is therefore this For than in the name of the members individually. rather be done collectively seal, under a common the Review Panel reason, and eff the Minister. to In model the key governance determining the appropriate factor is the extent which the authority to is and the implementation of strategy determine and oversee to act, the power to that is, power delegated This in turn depends on the functions of the authority. direction by management. Some statutory undertake established to authorities are It activities. commercial to is generally appropriate in commercial are and strategies policies acttheir operations, as such authorities, to to full power delegate of the market. driven by the imperatives structure and are In a governing board nature this circumstance and independence necessary with the power can be provided board as the to be appropriate, may add value. market to to and thereby in response imperatives freedom ‘entrepreneurial’ function with at providing directed they are Instead, in nature. not commercial are Most statutory however, authorities, which inevitably aff that the marketoutcomes deliver, not ordinarily would elected on the basis of Governments are is a uniquely government role. This between competing interests. objectives and priorities the the policies, that guide performance held accountable for and are of this role achieved. outcomes this latter grant and accountability to Because of this role of government, it is generally inappropriate in the governance of the of authority act.form to government should be involved Instead, full power It this. government provides for provide to management structure is designed An executive authority. objectives and priorities while also preserving in setting the overarching of the organisation, with a role by management is then overseen Executive the authority. independence for of level an appropriate performing government for and accountable to the functions of the authority with the consistently ed objectives and priorities. identifi advisory, provide functions to are the Authority’s In Barrier Authority, the case of the Great Reef Marine Park management and serviceregulatory, These activities delivery are functions on behalf of the government. and the expenditure the allocation of resources and carrynot commercial the community, implications for of the power and the use of the coercive of public power the exercise They involve of public money. by the by and accountability government provided This suggests that the oversight to Commonwealth. and that the management structure is appropriate executive 1997 Act d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d in relation to overarching objectives, valuesandbroader performance, governmentpolicies. The Authority oversight. More specifi cally, itshouldbethe ofthe role ofgovernment Authority to establishexpectations theirrole, to governmentdirectionand shouldbesubject themembersofAuthority performing In responsible(members) collectively for andgovernanceoftheAuthority. thefunctions be better formalised. The following detailstheseproposed governancearrangements. section with anexecutive managementstructure, therole shouldalso ofgovernment ingovernanceoftheAuthority offi group ofstatutory lightoftheseconsiderations, the ReviewPanelIn a shouldcontinueto believes comprise thattheAuthority Park offi in governanceandmanagementoftheMarine through nominationofastatutory offi statutory economic valuesandthediffi Reefgiven inmanagementoftheGreat Barrier itscomplexity,importance size, environmental, socialand andjudgement. for thought,objectivity andability critical experience This isofparticular knowledge, One fi offi nalconsiderationisthevalueofmanagementbya group ofstatutory arethe Authority discussedbelow. powers provided intheenabling legislation. Recommendationsasto governmentpowers inrelation to islimited bythe oftheauthority inthefunctions cases, ofgovernmentto directlyintervene thecapacity bytheboard,board structurethisrole whichisaccountableto isperformed theMinister. However, inboth against theestablishedstrategicandpolicies.authority’s functions Underthegoverning direction,priorities management structure, ofthe governmentprovides oversight ofmanagementintheperformance is thatitprovides lessindependencerelative to agoverningboard approach. Underanexecutive Another issuewiththeexecutive managementapproach expressed insomesubmissionstotheReview of governmentprogrammes, including, for example, decisionsasto theallocationoffunding. andtheadministration of detailedplansmanagement,theestablishmentandallocationinfrastructure relateddevelopment ofpoliciesandpractices to regulation thedevelopment andadministrationoftheAct, policy, regime regulatory and/orprogramme. thecaseofAuthority, In would include suchactivities develop operationalpolicy, thatis, policiesrelated to theadministrationofanestablishedgovernment alsodoesnotmeanthattheyshould shouldnotdevelop authorities policy The notionthatstatutory would process generallybeappropriate. involving theDepartment or whole-of-government have implicationsand/orraisesignifi cross-jurisdictional implications, awholeofportfolio cantbudgetary of advice. However, asdiscussedinChapter 9,inthecasewhere Park matters transcendMarine boundaries, source relationshipsandcommunitiessuggestthatitshouldremain akey withstakeholders close working Park ReefMarine case oftheGreat Authority, Barrier presence on-ground and itsspecialisedknowledge, development. inthe Indeed, role cannotplay inpolicy akey authorities This isnotto say thatstatutory infrastructure, practices,resources issues, astheypossessthenecessary andculture.on policy advice are bestplacedto providebasis for departments whole-of-government thisviewisthatportfolio This appliesregardless ofwhetheragoverningboard orexecutive isused. managementstructure The to implementpolicy, review authorities The Uhrig notes thatitistherole notdevelop policy. ofstatutory such arole. out isableto tocarry would theAuthority develop notallowtheAuthority policy, andthatitisimportant management structureto theAuthority. isthatanexecutive Onesuchconcern managementapproach A numberofsubmissionsto theReviewexpressed abouttheapplicationofanexecutive concerns The ReviewPanel Future governance arrangementsfor theAuthority

1 4 9 ceholders is also particularly important asitfacilitates QueenslandGovernment involvement important ceholders isalsoparticularly recommends ceholders selected forandindependence.ceholders selected However, theirrelevant expertise consistent cult taskofmanaging for multipleuseobjectives. The useofagroup of that the Authority continue to comprise a group of statutory offi agroup continueto comprise thattheAuthority ofstatutory Review of the the of Review Great MarinePark Reef 1975 Barrier Act ceholders with relevant ceholder. ceholders 112/9/06 10:41:01AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:02 AM . that one work ceholders would recommends that members of the Authority ective performance of the legislative (s. 7(2)). Authority be members would (s. recommends that the Authority comprise a Chairperson and Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great cient and eff recommends that the current arrangement for the appointment of members by the arrangement that the current for ectively perform functions of the Authority with the legislative consistently Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great recommends ciently and eff ectively. The Review Panel therefore therefore Panel The Review ectively. 0 5 1

required to perform the functions of the Authority in accordance with any such directions. The specifi c The specifi perform to such directions. the functionsrequired with any of the Authority in accordance direct the Authority to below. is discussed powers of the Minister’s nature The role and powers of Authority members and powers The role the effi of the Authority ensure members is to The role functions of the Authority, consistent with the government’s expectations in regard to performance, to expectations in regard with the government’s consistent functions of the Authority, government policies. values and broader objectives, these expectations primarily model, would by the Minister be communicated Under the proposed as issue general directions, to the power of Expectations, but also through Statements formal through in the for provided currently The composition of the AuthorityThe composition part-time full-time Chairperson members—a The Authority and three comprises currently members. four One part-time another of the Queensland Government and on the nomination member is appointed of Indigenous the Marine to communities adjacent must the interests All appointees Park. represent to to the functionsAuthority. relevant cations or experience of the possess qualifi that membership of the Authority the Review suggested be expanded to A number of submissions to of particular with expertise industries or persons include representatives operating in the Marine Park in those industries. as good governance, for appointments do not provide that representational The Uhrig notes review than the success of the entity they are concerned with those they represent be more may appointees the Review Panel this reason, For governing. for responsible members would then be responsible for developing and implementing strategies, measures and and measures implementing strategies, and developing for be responsible then would members effi to initiatives government expectations. government expectations. of role further sections provide composition of the Authority, The following of the recommended details of government. Authority members and role Governor-General on the advice of the Minister should continue. Members should be appointed for Governor-General on the advice of the Minister Membersfor should be appointed should continue. with the opportunity Remuneration and resignation years, reappointment. a period three up to of for in the for provided as currently should remain provisions continue to be appointed based on qualifi cations and experience that are relevant to the functionsrelevant of cations and experience that are based on qualifi be appointed continue to be businesses and bodies should instead c sectors, specifi and input from Representation the Authority. advisory Reef Advisory such as the Advisory through committees, Board, for and consultative provided detail in in more considered are These committees Marine Advisory and Local Committees Committees. as an Advisory Committee Board. of the Consultative 10, including the reconstitution Chapter the functions of government of the Authority also considers that, given and the role The Review Panel a small number of offi structure, management in governance under an executive most eff a minimum of two and a maximum of four other members. The Chairperson on a should be appointed other members. a minimum of two and a maximum of four with all other appointments part-time. full time basis, participation Queensland for in management, the Review Panel provide To member, not being the Chairperson, by the Queensland Government be nominated should continue to member, Government. Otherin consultation with the Australian should be the responsibility appointments of the Government, in consultation with the Queensland Government. Australian The Review Panel d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d statements shouldbepublicdocuments. ‘Statement ofIntent’ indicators agreed performance withtheMinister. andkey identifyingactions These itsoperations. willconduct government asto howtheAuthority would respondThe Authority witha would ofthe relevant outlinepolicies andobjectives Expectations and theexpectations to theAuthority Statements of andtheoversight ofperformance. oftheauthority of governmentexpectations reviewUhrig asameansofproviding greater inthesetting structure, andtransparency formality to theAuthority.of Expectations,madebytheMinister These statements are recommended bythe agency for ofthatAct. thepurposes agency Act 1999 Service bystaff As withcurrentshouldbesupported arrangements, theAuthority a representational manner. reinforces theintention that therole membersisto collaboratively, work ofAuthority in ratherthanacting confl ofthemember’s withtheproper dutieswithoutapproval ict performance Minister. from the This Authority. to shouldalso notbepermitted engageinemploymentthatconfl Members orcould icts membersshouldberequired theirfunctions,Authority inthebestinterests to act performing ofthe In having acastingvote ofmembers,Chairperson where withthe required. ofamajority support collectively. wouldThe powers beperformed oftheAuthority Any exercise ofpower would require the dispose ofassetsandto enter into contracts. oftheAuthority. ofthefunctions performance toThis would acquire, includethecapacity holdand would orconvenient haveThe Authority withthe thepowerinconnection to doallthingsnecessary available. proposed provided shouldbeoutlinedinaStatement andmadepublicly ofIntent to theMinister consistently withthegovernment’s expectations. These strategies andtheinitiatives andactivities responsible for developing strategies oftheAuthority thefunctions andinitiatives for performing response to andotherdirections,In memberswould Statements be ofExpectations theAuthority 2 (s.The GBRMPAct suchdirections. to 7)currently provides make withthecapacity theMinister 22 with the independently, act that theAuthority to anythatare subject generaldirectionsoftheMinister consistent Reef.Great Barrier Accordingly, Panel theReview considersitappropriate, aswithcurrent arrangements, commensurate withthedesire to promote objective, scientifi managementofthe candexpertise-based alevel thisrole, ofindependence for shouldpreserve theMinister Authority performing In government for andto oversee theoperationsofAuthority performance. The role inrelation isto oftheMinister to establishtheoverarching theAuthority of expectations The role andpowers oftheMinister The ReviewPanel to isexpected to work implement,for governmentpoliciestheAuthority example, Australia’s • shouldapplyinitsoperations, generalgovernmentpoliciesthattheAuthority for example, policies • thebroad oftheAuthority thatshouldguidethework objectives • to isexpected progress issuestheAuthority challengesandpriority • to isexpected deliver theoutcomes andoutputstheAuthority •

1 5 Oceans Policy.Oceans relating to themanagementofpublicmonies 1 Great BarrierReefMarinePark Act 1975 . These staff . These recommends , along with the Chairperson oftheAuthority, Chairperson shouldconstitute, alongwiththe astatutory that clarity on such issues be primarily achieved through onsuchissuesbeprimarily Statements thatclarity . 22 Suchgeneraldirectionscouldinclude, for example: Review of the the of Review employed underthe Great MarinePark Reef 1975 Barrier Act Public 112/9/06 10:41:02AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:02 AM (s. 7 (2)). (s. vest the chief vest cer and Chairperson and cer and agency the head for a member cer also being Public Service 1999 Public Act that the Chairperson of the Authority Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great , the Chairperson and employees together , the Chairperson together and employees and the cer and Chairperson a situation can lead to recommends cer performing a hands-on and assuming legislative role does not currently provide for appointment of a chief executive executive appointment of a chief for provide does not currently cer. This role would encompass the position of chief executive encompass the position of chief executive would This role cer. Public Service 1999 Public Act Financial Management and Accountability Act 1997 Act Management and Accountability Financial cer has unclear and potentially confl ictingresponsibilities and accountability confl and potentially cer has unclear cer the Minister the performanceectively oversee should of the Authority, cer with the fi nancial and resource management powers necessary to run the agency. These necessary management powers resource to run the agency. nancial and cer with the fi Financial Management and Accountability Act 1997 Act Management and Accountability Financial Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great 2 5 1 cer. This role is instead performed is instead This role by the Chairperson of the Authority as the only full-time member. cer. the purposes of the cer for

executive offi executive offi the chief executive in the Authority through should also be vested powers (Chairperson). In the Review Panel light of these considerations, In of Expectations issuing Statements and making the the Minister should not have general directions, to issue permits to specify the such as decisions and c issues, specifi to directions in relation issue to power areas to the capacityThe Minister in relation issue directions to also should not have conditions attached. the Ministershould not example, For independence. legislative in which the Authority is explicitly given as part should be declared the Authority direction to on which areas of the Marine provide be able to Park, advising the Governor-General on this issue. for be responsible continue to but would enable the Ministereff to To communication, particularly regular operations through to in relation of the Authority’s be informed reports,to obtain such and documents the power The should also have Minister cant issues. signifi any of the Authority the operations to as required. in relation information able key performanceAuthority by the should be developed members indicators Measurable and verifi The Minister and as part of Expectations. the Statement to of Intent of the Statement made in response the key against performancethe Authorityprogress discuss members should meet at least annually to matters. relevant and other targets indicators, rst discuss performance In performance, holding the Authority the Minister accountable for fi would directly with the Chairperson, seek a submission and may include the other Authority may members, action. remedial detailing proposed The Department the support would and advise the Minister Accordingly, in performing roles. the above of linkagesThe issue Department issues concerning the Authority. of all relevant should be kept aware between Authority the and the Department 9. is discussed in Chapter The chief executive offi The chief executive The Furthermore, for the purposes of the for Furthermore, a statutoryconstitute of which the Chairperson is the head. agency, offi of chief executive that the roles the Review suggested A number of submissions to Authorityto members on the one hand and the Minister on the other. Also the The Minister should also retain power to make other general directions. Any such directions should be directions should be such Any make to general directions. other power The Minister also retain should reportedby the Annual Report, in the required as is currently offi offi the chief executive where of the Authority be separate to enhance the role of the Authority as a source of accountability. of the Authority as a source enhance the role of the Authority to be separate between those establishing demarcation is limited there management approach, Under an executive the responsibility of the instead and management are and those implementing it. Strategy strategy offi with the chief executive members collectively, on behalf of the other members. responsibilities offi Importantly of chief executive separating the roles also, perform the role of chief executive offi perform of chief executive the role offi d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d management and accountability—the management andaccountability—the areto legislative oneoftwo authorities Commonwealth subject for frameworks statutory fi nancial Financial managementandaccountability 12.3 ofthe purposes Accountability Act 1997 therole ofchiefexecutive performing offi In delegated to oftheAuthority the functions forthe Authority,andperform theAuthority support arrange and ethicalexpenditure ofpublicmoney. The Management andAccountability Act 1997 onbehalfofgovernment, the outfunctions isusingpublicmoneyto carry Where anauthority assets inamannerresponsive to thedemandsofmarket. Act 1997 ispredominantlyWhere commercial anauthority innature, the oftheauthority. shouldbeappliedbasedonthecharacteristics frameworks recommendationauthorities. oftheReview, Akey endorsedbytheAustralian Government,isthatfi nancial reviewThe Uhrig considerstheapplicationofthesefi nancialmanagementframeworks to statutory inmuchthesamewayaccountable to company aprivate theMinister isaccountableto itsshareholders. isgenerallyfreeManagement to thefi determine itemploysandis nancialmanagementpractices are responsible for managing theauthority’s moneyandresources inthebestinterests oftheauthority. The same way company thatmanagementofaprivate isaccountableto theboard. forto theMinister Finance responsible andAdministration inmuchthe andtheMinister for theauthority specifimoney andassets. It es required and nancialmanagementpractices provides foraccountability fi The Commonwealth AuthoritiesandCompanies Act 1997 on private companiesunderthe on private underthoseActs. functions direction bytheothermembersinperforming is responsible, underthoseActs, to theMinister. To avoid confl these between responsibilities andthe icts The Authority is currently subject to the iscurrently subject The Authority example, provides astheAct alevy) for aframework andadministrationofsuchfunds. thecollection appropriate isusingthegovernment’s where theauthority coercive powers publicmoney(for to collect commercial operationofReefHQ. Government’s NaturalHeritage Trust programme. to Only$2.6millionisexpected beraisedthrough the managementcostsand$8millionthroughits share grants ofday-to-day provided undertheAustralian the remaining funding, $4.8millionwillbederivedthrough aQueenslandGovernmentappropriation for onbehalfoftheAustralianAuthority Government through theEnvironmental Charge. Management Of from the$22.8million,$7.4millionrepresents theAustralian bythe Government. Of moneycollected fi nancial year, $22.8millionofthe Authority’s $38.1millionbudgetwasderivedthrough appropriation fundedthroughitsbudgetfor governmentappropriation. isprimarily In the2005–06 The Authority revenue raisedfromislessthanthecostofproviding theseactivities theservice. done onacommercial basis, specifi andeducationfacility. callytheoperationofReefHQaquarium The are ofthesefunctions onbehalfofthegovernment.Onlyasmallportion functions role isto undertake Chairperson bythemembers. Chairperson Chairperson’s to shouldnotbesubject responsibilities members,Chairperson to theotherAuthority the

1 5 3 Commonwealth AuthoritiesandCompanies Act 1997 Financial ManagementandAccountability Act 1997 may beappropriate, asitprovides greater fl to manageitsmoneyand exibility for theauthority Public Service ActPublic 1999 Service and agency headfor ofthe thepurposes andagency Corporations Act 2001 . aff would alsoadminister theday-to-day Chairperson The Financial ManagementandAccountability Act 1997 isappropriate, asitprovides for aframework theeffi Commonwealth Authorities andCompanies Act 1997 cer for ofthe thepurposes Financial ManagementandAccountability Act 1997 . provides for aframework themanagementofpublic . Under this framework, directors andmanagers . Underthisframework, provides similarto aframework thatimposed Commonwealth AuthoritiesandCompanies Review of the the of Review Public Service ActPublic 1999 Service Financial Managementand Great MarinePark Reef 1975 Barrier Act , the Chairperson Chairperson , the orthe cient, eff . However, its Financial isalsomore airs of ective ective 112/9/06 10:41:02AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:02 AM , Financial Financial ect the the ect , raised in would in fact would Financial Financial (s. 56) currently 56) currently (s. ective and ethical use ect on the operational cient, eff cient, are required to employ specifi ed specifi employ to required are Commonwealth Authorities and Companies and Companies Authorities Commonwealth Financial Management and Accountability Management and Accountability Financial that the Authority move from the the that the Authority from move Commonwealth Authorities and Companies Act 1997 Act Authorities and Companies Commonwealth Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great to the to framework, this provision would no longer be required, framework, no longer be required, would this provision . For example, it has an internal audit committee, a it has an internal audit committee, example, . For ect the independence of the Authority. Financial Management and Accountability Act 1997 Act Accountability Management and Financial Financial Management and Accountability Act 1997 Act Management and Accountability Financial , rather than the recommends that would allow these joint fi nancial management arrangements nancial management allow these joint fi that would Financial Management and Accountability Act 1997 Act Accountability Management and Financial . as a ‘prescribed agency’. ‘prescribed as a 4 5 1

increase the independence of the Authority. increase the Review Panel reasons, the above For requires the Authority to obtain the approval of the Minister a contract the Authority prior obtain the approval entering into to to exceeding requires the in duration. Should the Authority to than 10 years move $150 000 in value or a lease of greater 1997 Act Accountability Management and Financial the effi framework for and comprehensive robust a more as the Act provides the moving to Therefore, of public money. authorities have greater scope to determine the practices put in place. However, this will not aff this will determine the practices However, scope to put in place. greater authorities have upon the contingent This independence is instead the Minister of an authority. independence from of the Minister intervene as set out in the enabling legislation. powers to authority, in the operations of the fi nancial management, the to relation cally in Specifi independent operation and objectivity of the Authority in the performance of its statutory functions. under the nancial management practicesrequired Indeed, employs most of the fi Authority the already 1997 Act Accountability Management and Financial guidelines and employs the Commonwealth Minister’s plan that complies with the Finance fraud control Guidelines. Procurement framework nancial management also has no eff The application of a particular fi fi nancial management practices, whereas under the nancial management practices, whereas fi submissions to the Review, is whether it would aff is whether it would the Review, submissions to Authorities under the Authorities Act 1997 Act makingOne consideration in joint day- the arrangements is with Queensland for this recommendation Park. their basis in a of the eld management Marine which have Under these arrangements, to-day fi day-to-day and is funded equally by the Australian management agreements, series of intergovernmental nancial framework designed with a fi managed in accordance These funds are Queensland governments. under the of mechanisms available a number are There governments. meet the needs of both to Management and Accountability Act 1997 Act Management and Accountability 1997 Act Management and Accountability be continued. to A further the consideration with moving to In light of these factors, it would seem appropriate that the Authority be subjectIn appropriate seem the it would to light of these factors, Commonwealth Authorities and Companies Act 1997 Act Authorities and Companies Commonwealth 1997 Act d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:41:03 AM Great Great ective , which provides , which provides Environment Protection Protection Environment cient and eff refl ects and implements a refl in this In as noted ective. some cases, cient and eff Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great covers a similar range of issues to the EPBC Act, but specifi cally the EPBC Act, but specifi to a similar range of issues covers is consistent with current Australian Government policies and Australian with current is consistent level. detailed a more er at . (EPBC Act). This Act is the Australian Government’s primary Government’s legislation This Act is the Australian (EPBC Act). Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great applies uniformly to both Queensland coastal waters and Commonwealth and Commonwealth both Queensland coastal waters to applies uniformly and management of the creation for species and provides ecting threatened is that the erence erence between the two Acts is their coverage within the Great Barrier Reef Region. The Barrier between within the Great the two Reef Region. Acts is their coverage erence Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great 6 5 1

the primary basis for the regulatory framework, is now 30 years old. While the Act has aged well, pressures pressures the primaryWhile the Act has aged well, regulatory the framework, for basis old. years is now 30 Barriertime and it is important on the Great Reef and management priorities changed over have for the management and regulatory necessary provide tools the Act to the effi for Barrier the future. Great management of the Reef into the introduction of the of the regulatoryA review framework given is also timely and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation impacts cant that activities signifi having it requires Among other things, regulation. environmental for world migratory such as heritage, and the species cance’, signifi of national environmental ‘matters on It impact assessment and approval. be subject environmental to marine environment, Commonwealth activities aff also regulates Reserves. Commonwealth The in relation to the Great Barrier Reef Region. Among other things, it provides for the establishment of the for it provides Barrier Among other things, the Great Reef Region. to in relation plans and plans of zoning through of activities within the Park and the regulation the Marine Park impacts. a permit and management of environmental system management, regulations, A key diff It outcomes. is at achieving the above directed recommendations provides chapter The following and Heritage that he is considering has announced the Environment that the Ministeralso noted for While the Minister has during 2006. the Parliament into be introduced the EPBC Act to amendments to some of the of the EPBC Act will be maintained, the same basic framework and approach indicated effi make to them more will be streamlined processes Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park impacts Barrier the management of environmental and to Great Reef Region within the entire waters within the Region. although land and waters, Commonwealth to applies predominantly The EPBC Act, on the other hand, of ‘matters cant impact on a signifi issues having regulate that provisions These are some provisions World Heritage Areas). world (which include the heritage values of cance’ signifi national environmental Another key diff and Queensland governments that is management between the Australian to approach cooperative Emerald Agreement). (the agreement underpinned by an intergovernmental the to Act in relation maintain a separate to considers it is appropriate the Review Panel these reasons, For it is important that this Act and the EPBC Act do not unnecessarily ensure to However, BarrierGreat Reef. It is also important that ensure manner. to and integrated in a cohesive each other and operate duplicate the Acts generally Act. the are ected in the EPBC At present, two as refl protection, environment to approaches but diff equivalent at a framework level, duplication between the EPBC Act and the potential changes will assist in removing the proposed chapter, 1975 Act Barrier Reef Marine Park Great the and objectives general considerations in reviewing a number of other more are there this, Beyond regulatory framework. 13 regulatory The framework and protection the basis for that provide the regulatory considers and processes This chapter powers Barrier Great management of the Reef by the Authority and others. The the regulatory of A review framework is timely. d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d principle, asdefi nedinthe ofecologically into to accounttheprinciples sustainabledevelopment take andto applytheprecautionary specifi functions. regulatory For example, couldbe when performing edobjectives the requiredAuthority The ReviewPanel also with Queenslandandlocalgovernments, people, communities, businessandindustry. Indigenous conventionsinternational astheyrelate to Reefandfacilitatingcooperative theGreat management Barrier sustainable development, fulfi lling Australia’s obligationsunderthe Convention Heritage World andother shouldincludeprovidingobjectives for ofecologically arangeofusesconsistent withtheprinciples shouldrecognisesection theprotection Reefasanoverarching oftheGreat Barrier objective. Subsidiary relevant legislation, for section. example, inanobjects The inthe objectives isbyincludingregulatory The mostcommonway ofachievingthistransparency againstthoseobjectives. shouldbeaccountableforThe Authority performance theAct. andingenerallyadministering functions regulatory to isexpected pursue inperforming Authority fromarising theoperationof Firstly, to identifyandaddress regulatory itisimportant ‘red tape’, andduplication,notablythat overlap The The ofregulation objectives 13.1 decisions underthe below, inrelation to specifi functions. c regulatory The ReviewPanel reads: rather thanitsobjects.It althoughitislimited indetailanddeficurrently containssuchasection, ofthe Act, nesthefunction the ReviewPanel. These issuesshouldbeconsidered inimplementingtheoutcomes ofthisReview. may also be somemore detailedandminorlegislative changesrequired thathave notbeenconsidered by general recommendations willrequire more specifi cconsiderationanddevelopment. there Furthermore, changes to for thegeneralframework regulation andmanagement. The ReviewPanel notes thatthese considerations. Given the Terms ofReference ofthecurrent Review, therecommendations are focused on This chapter recommends inlightoftheabove framework anumberofchangesto theregulatory mustbeconsidered. andaccountability transparency ofperformance, expectations arrangements. To thisend, ofresponsibilities inproviding framework therole and clarity oftheregulatory Thirdly, needsto framework beconsidered ofreviewing theregulatory inthecontext governance plans. relevantraised concerns to theseissues, notablyinrelation to theprocesses for thedevelopment ofzoning inplanning, andmanagementactivities.Anumberofsubmissionsto theReview regulatory participation Secondly, to considermechanismsfor enhancedtransparency, itisimportant andpublic accountability eff generally working relevant Australian Governmentagenciesare already inplaceto address thisissue. areThese arrangements Queensland legislation. Anumberofcooperative measures withtheQueenslandGovernmentand

1 5 development ofamarinepark… The objectoftheAct istomake provision forandinrelation tothe establishment,control, care and 7 Great BarrierReefMarinePark Act 1975 recommends Great BarrierReefMarinePark Act 1975 ectively andshouldbemaintainedwhereectively necessary, enhanced. recommends Environment Protection Conservation Act andBiodiversity 1999 thatamore beincludedintheAct. comprehensive section objects This Great BarrierReefMarinePark Act 1975 that the Authority beexplicitlyrequired thattheAuthority into to account take should clearly andtransparently shouldclearly state the theobjectives . Recommendationsto thiseff Great BarrierReefMarinePark Act 1975 Review of the the of Review andotherCommonwealth and Great MarinePark Reef 1975 Barrier Act ect areect provided , in making certain certain , inmaking

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6 0 / 9 / 2 112/9/06 10:41:03 AM Great Great into line into (s. 31), (s. Environment Environment Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Environment Protection and Biodiversity Conservation Protection Environment . . This procedure specifi es the factors the Authority es the factors the must consider in specifi This procedure . on enhancements to the process for the development of zoning plans, which include: plans, of zoning the development for the process on enhancements to , as is already the case in relation to two areas within the Coral Sea region (the Coringa–Herald and Sea region within the Coral two areas to the case in relation , as is already 8 explaining why zoning needs to be reviewed. This report would be publicly released at the fi rst at the fi This report be publicly released would be reviewed. needs to zoning explaining why process on the proposed consultation phase along with information Principles These Operational will proceed. of the zoning and objectives on which the development to the Authority be required would Once approved, by the Minister. be public and approved would zoning in developing the Operational Principles to regard have 5 1

Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection 1999 Act Reserves).Lihou Reef National Nature A number of submissions to the Review proposed that the area over which the Marine Park may be may the Marine which over Park that the area the Review proposed A number of submissions to the east of the Barrier Sea to be extended take in the Coral (the Great to Reef Region) in areas declared that they are it is noted cance, signifi ecological of contains areas that this region While it is recognised Park. and form Trough including the Queensland Barrier of deep water the Great Reef by an area from separated extend to the does not consider it appropriate the Review Panel distinct Accordingly, a largely ecosystem. through should be provided protection warranted, where Instead, Barrier as suggested. Great Reef Region Reserves of Commonwealth under the the creation with the process for creating, amending and revoking Commonwealth Reserves amending and revoking Commonwealth under the creating, for with the process may proclaim an area to be a part of the Marine Park. The Governor-General be a part also make to may a proclamation an area the Marine of proclaim may Park. a supporting rst be motion passed by both revoking or amending the Marine must fi but there Park, Houses of Parliament. with current and generally consistent appropriate are processes considers that these The Review Panel enhance transparency to and public participation, that the it is suggested policy and practice. However, and to extend to the Marine or amend a report proposal Park on any prepare to Authority be required also bring Such changes would the consult on that proposal. Zoning plans are the primary tool for management of the Marine Park. They identify the management the primary plans are management of the MarineZoning Park. for tool of right’ ‘as activities and specify that can be undertaken of the Park ‘zones’ objectives particular of or areas a permit. and those that require doing so is set out in the for A procedure plans. zoning developing for The Authority is responsible recommendations 13.3 Zoning plans 13.3 Zoning Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park a to create rstly on the intention fi the Authority consult publicly, to plan and requires a zoning developing by the Minister and approved plans are plan and secondly on a draft plan. Once developed, zoning zoning by a motion of either House. be disallowed they may where tabled in Parliament, Plan. of the 2003 Zoning the development to the Review related number of submissions to A large also makesThis chapter a number of 10. discussed in Chapter The issues raised in such submissions are 13.2 the Marine Park Creating within the the areas the MinisterA key of the Authority to make regarding is to role recommendations The to be part Act)Park. ned in the that should be declared of the Marine Barrier (as defi Great Reef Region Minister under the then advises the Governor-General who, • setting out the general policy parameters ‘Operational Principles’ the Authority develop requiring to • three. one month to extending permissible public consultation from the minimum period for • plan zoning amend the current to process the commencement of any the Minister requiring approve to • c and socio-economic research scientifi a report on relevant drawing the Authority prepare requiring to d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d Park establishedinthefuture. process shouldalsoapplyto thedevelopment ofnewzoning inrelation to any newareas oftheMarine amendment beconsidered appropriate thistime, after theprocess setoutinChapter 10shouldapply. This not becommenceduntilatleastseven years from thedate theplancameinto eff Chapter provide 10) thattheAct of, thatareview andamendmentofall, orpart thezoning planmust Given theabove andmatters discussedinChapter 10,theReviewPanel bioregional level andwithregard to thewholeofzoning plan. may bepossible to buildinprotections againstthis, for example, byrequiring amendmentsto bedoneata the planbepermitted, there may beagradual declineinprotection over time. However, itisnoted thatit andbusiness.the community Additionally, theReviewPanel of that,shouldchangesto parts isconcerned remain constantfor areasonable inorder period to realise thebenefi tsof zoning andprovide stability for Panel for oftheplan,Review zoning to considersthatitisimportant ofamendingparts terms In such amendments. SuchamendmentsshouldbedisallowablebyParliament. for geographic example, transcribed coordinates. incorrectly Noconsultationrequirements shouldapplyto provided canensure legaldrafting thatonly ‘errors’ ofatechnical andinsubstantialnature canbecorrected, zoning. To thisend, Panel theReview to isexpected pursueindeveloping andconsiderationsthattheAuthority ofobjects a clearframework The ReviewPanel oftheplan. oferrors andamendmentstothe correction parts submissions to theReviewthatthere isaneedfor amore fl exibleamendmentprocess inorder to allow for zoning planto becreated andtherefore thewholeofplanto bereviewed. hasbeensuggested in It between the two Acts. thetwo between environmental on impacts ‘matters ofnationalenvironmental signifi cance’. Thiscreates adegree ofoverlap be triggered inrelation Park to proposed withintheMarine thatareto activities have likely signifi cant assessmentandapproval ReefRegion.impact applyingwithintheGreat Barrier These requirements can The of thePark Reef. andtheGreat Barrier Park, users unlessthere ontheMarine such apermission hasbeenanassessmentofthepotential impacts Park ReefMarine Regulations(r.Barrier 117)provide, amongotherthings, mustnotgrant thattheAuthority Park withintheMarine inaccordance granted withapermission bytheAuthority.be undertaken The Great Under the Amending andreviewing thezoning plan The ReviewPanel The assessment Permitting andenvironmental impact 13.4 Biodiversity Conservation ActBiodiversity 1999 recovery, threat plansmadeunderthe abatement and/orwildlife conservation should berequired to have regard Principles Management andany to relevant theAustralian IUCNReserve forprotected areas accountingpurposes. nationalandinternational Similarly, category theAuthority Conservation Act 1999 to the ofthisenhancement,cross-linkages As part framework. Reef MarinePark Act 1975

1 5 9 Environment Protection Conservation Act andBiodiversity 1999 Great BarrierReefMarinePark Act 1975 Great BarrierReefMarinePark Act 1975 recommends recommends should be built in. In particular, shouldbebuiltin.In shouldbeassigned eachzone anIUCN type (s. 32)beenhancedto provide greater specifi andamore city contemporary thatitbepossibleto amendtheplanfor errors, ofcorrecting thepurpose that,inadditionto therecommendations inChapter 10,there shouldbe . recommends and the 2003 Zoning Plan provide that certain activities may andthe2003Zoning only activities Plan provide thatcertain , amendingazoning planessentiallyrequires anew thatcurrentspecifi objectives edinthe Environment Protection andBiodiversity Review of the the of Review alsoprovides aregime for environmental recommends Great MarinePark Reef 1975 Barrier Act Environment Protection and ect. Shouldreview and ect. (seealso Great Barrier 112/9/06 10:41:03AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:03 AM . and Great Great erent assessment erent processes establish a processes , Regulations and the the purposes of ce for that diff . to matters of national environmental of national environmental matters to Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great should apply. An approval under the An approval should apply. Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Environment Protection and Biodiversity Protection Environment would then suffi would recommends or Regulations. or Regulations. that the Authority continue to be responsible for for that the Authority be responsible to continue . Given the importance. Given of this function management and users to recommends that the basis and procedures for doing so be consolidated within doing so be consolidated for that the basis and procedures Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great recommended should provide the primary impact should provide assessment and environmental basis for Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment , subject to more detailed consideration, that the detailed , subject more to ecting Marine Park users. Furthermore, the changes would ensure that environmental impact that environmental ensure the changes would Furthermore, ecting users. Marine Park Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment 0 6 1

Regulations at present do not contain equivalently comprehensive processes and requirements. processes do not contain equivalently comprehensive Regulations at present the Review Panel Subject the above, to clearly defi ned framework for impact assessment and decision making and provide appropriately for for impact assessment and decision making ned framework appropriately and provide clearly defi and accountabilityThese EPBC Act processes and opportunities public participation.transparency, for The generally acknowledged are as best practice. requirements Under these arrangements, the Authority should, in most cases, be delegated responsibility for assessment assessment responsibility for be delegated in most cases, the AuthorityUnder these arrangements, should, by the Minister with perform manner and concurrent and would and approval this task in an integrated under the and permitting assessment requirements related any cant environmental activity a proposed where is primarily outside the Marine carries Park, signifi However, the Department for appropriate to be more complex and detailed assessment, it may risks and/or requires In with consultation such cases, be the responsibility of the Minister. to approval take for the lead and/or the Authority be appropriate. would in a regulatory and consistent environment streamlined a more provide help to These changes would key aff area modern, comprehensive are the Marine to Park in relation employed processes assessment and approval The and robust. This new part including permit of the Act should describe the permitting and assessment process, factors the Authority and public timelines, must consider in issuing permits, application requirements, The new partAct, permission under the to all activitiesrequire should apply that requirements. cation notifi Traditional of of the assessment and accreditation with the exception Plan Regulations and 2003 Zoning a new are as these Agreements separate, should remain This process Use of Marine Agreements. Resources time. nement over need refi and may initiative the Review Panel tape’, ‘red minimise regulatoryIn to order Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park of the Marine it is Park, recommends The EPBC Act contains a number of provisions designed to address this overlap. In assessment summary, this overlap. address to designed ActThe EPBC a number of provisions contains taken actions and are the Marine that are within for Park under the EPBC Act is not required and approval or permit issued by approval or a permission, plan, plan of management authorised authority, by a zoning from advice and consider’ ‘obtain the Authority to 160) requires the EPBC Act (s. However, the Authority. cant impacton a signifi likely actions have to a permission to that are in relation it gives the Minister before consideration by the Authority separate and the Department a need for Hence, remains the environment. activity a proposed also arise impacts both where on areas requirements Parallel in some circumstances. Marinewithin and outside the Park. the Review regulatory Panel consistent environment, a more this duplication and provide address To approval of activities within the Marine Park. More specifi cally, where a proposed activity a proposed where within the Marine cally, of activitiesapproval within the Marine specifi More Park. of requirements impact, assessment and approval the cant environmental a signifi is likely have to Park the 1999 and Biodiversity Act Conservation Protection Environment Conservation Act 1999 Act Conservation permission requirements under the permission requirements a single part of the issuing permissions as required by the issuing permissions as required processes be available. Streamlined assessment based on application documentation and undertaken assessment based on application documentation Streamlined be available. processes activities with minimal risk for and impact considerations should be available and/or against standardised the activity in-depth More where assessment, such as continuation of an existing activity. does not require the application given However, appropriate. where should be available assessment requirements intensive of the d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d any relevant recovery, threat plansmadeunderthe abatement and/orwildlife conservation • where relevant, theNationalHeritage/Commonwealth Principles Management assetoutin Heritage • theAustralian World Principles Management assetoutintheEnvironment Heritage Protection and • required to consider(amongotherthings): Protection Conservation Act andBiodiversity 1999 13.5 Protected species signifi thatthe itisnotexpected cance,Marine includinginthe Park, Both the ofprotectedManagement species recommends Both the permits forpermits ofthe thepurpose wildlife conservation plans. wildlife conservation The Finally, Panel theReview would containprovision for assessmentbypublicenvironment orenvironmental statement. report impact Protection Conservation Act andBiodiversity 1999 Act 1975 coastal waters upto thelowwater mark. Great BarrierReefMarinePark Act 1975 protected species. Act 1975 Act 1999 predominately Park, an outsidetheMarine undertaken shouldprovide,These arrangements for aff example, thatwhere anactivity and Special Management Areas.and SpecialManagement Reserves underthe Reserves proposed for ReefRegion theGreat isconsistent Barrier withtheproposed treatment ofCommonwealth Agreement. The ReviewPanel theseproposed changesandnotes thatthegeneralapproach supports off the amendments currently beingprepared thisexemption willextend to applyto thecetaceanprovisions of doneinaccordance issuedbytheAuthority.do notapplyto activities withapermit Legislative Conservation Act 1999 iscurrentlySome ofthisoverlap managedbyproviding that duplicative anddiff areas withinthree nauticalmilesoftheshore. This creates andinsomecases, overlap someregulatory provisions applyto Commonwealth Park, butnotto the waters bothwithinandoutsidetheMarine terms and conditions that apply within the Marine Park. andconditionsthatapplywithintheMarine terms would beconsultedthe Authority aboutthegranting whichwould ofthepermit, expressly indicate the to activities occurring both within and outside the Marine Park. bothwithinandoutsidetheMarine occurring to activities To address this, theReviewPanel theabove,Notwithstanding onearea requirements inwhichduplicative regulatory remain isinrelation

ences do not apply to activities authorised underanaccredited authorised ences donotapplyto activities Traditional Resources UseofMarine 1 6 Environment Protection Conservation Act andBiodiversity 1999 the Environment Regulations Protection Conservation andBiodiversity assessment andapproval Regulations, to to whichtheyapplyto theextent environmental Conservation Biodiversity impact 1 Environment Protection Conservation Act andBiodiversity 1999 provide ofprotected for directed attherecovery species. managementactions The and/orinterferewithspecifi harm kill, take, that(variously) prohibitwithoutapermit actions ed permit willsatisfytherequirements permit ofthe Environment Protection Conservation Act andBiodiversity 1999 Environment Protection Conservation Act andBiodiversity 1999 that arrangements beputinplaceto accredit thatarrangements ering permitting requirements. permitting ering Environment Protection Conservation Act andBiodiversity 1999 protected speciesoff recommends Environment Protection Conservation Act andBiodiversity 1999 Great BarrierReefMarinePark Act 1975 provisions apply within the Marine Park, includingwithinQueensland provisions applywithintheMarine thatinorder to promote integration withthe Environment Protection Conservation Act andBiodiversity 1999 ences, withtheexception ofthoseapplyingto cetaceans, , in considering permit applications the Authority shouldbe applicationstheAuthority permit , inconsidering provides for thecreation ofrecovery, threat abatement and Great BarrierReefMarinePark Act 1975 Environment Protection Conservation andBiodiversity Environment Protection andBiodiversity Great BarrierReefMarinePark Act 1975 . Review of the the of Review andto provide thatprotected species Great BarrierReefMarinePark Act 1975 provides for plansofmanagement andthe and Great BarrierReefMarinePark ecting protectedecting speciesis Great MarinePark Reef 1975 Barrier Act Great BarrierReefMarinePark . Environment . In suchacase, . In andviceversa. Environment

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6 0 / 9 / 2 112/9/06 10:41:04 AM , the are generally are provisions. This review This review provisions. in nature. erent as a be required may erences plans. This can be achieved by This can be achieved plans. and be reviewed ence provisions provisions are locally based and locally are provisions Environment Protection and Biodiversity Protection Environment provisions are concerned recovery with are and provisions Barrierective of the Great management Reef Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great achieve and to in the future cient enforcement that actions by the Authority zoning such as developing Environment Protection and Biodiversity Conservation Act and Biodiversity Act Conservation Protection Environment Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment ective and effi that investigation, enforcement and off enforcement that investigation, Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great recommends Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment will broaden the scope of Conservation 17 of that Act will broaden made under Part Orders recommends Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment and a number of modern enforcement options, such as civil penalties as an alternative to criminal to civil penalties as an alternative such as options, and a number of modern enforcement 2 6 1

Authority plan under that a recovery abatement must not take action plan or threat any that contravenes is There conservation act with a wildlife to in accordance Act steps and must take plan. all reasonable and complementarity species management integration betweennevertheless protected improve scope to be should continue to the Marine to Park plans relevant actions Accordingly, under the two Acts. plans should in consultation between the Departmentdeveloped Once developed, and the Authority. that diff recognising the Authority, management by a framework for provide Heritage Area. World Barrier to the Great of local application and/or management needs unique Reef result the Review Panel Accordingly, less than under equivalent provisions of the less than under equivalent provisions 1999 absent. are prosecution, The Review Panel practical the conservation management actions for the species. of agency under the a Commonwealth As should be done in consultation with the Attorney-General’s Department. Attorney-General’s should be done in consultation with the specifi cally requiring the Authority to have regard to relevant recovery, threat abatement and wildlife and wildlife abatement threat recovery, relevant to regard Authorityrequiring the to have cally specifi conservation undertaking plans when such activities. Emergency management powers primary management actionThe Authority’s immediate situations requiring is to means of responding by Emergency be declared may Special Managementthe declaration of Special Management Areas Areas. of a longer duration are a maximum of six months duration. Special Managementthe Authority Areas for by issuing a Regulation. created only allow the Authority restrict Special Management to activities Areas particular in Problematically, Furthermore, ed actions. take persons to specifi the Authority require They do not empower to areas. within the Marine not the entirety of the Great Park, created can only be Special ManagementAreas Barrier Reef Region. the changes to proposed that currently notes The Review Panel This will cance. signifi of national environmental all matters protect be used to to these Orders allow to the world heritageenable Conservation protect values of the Marine be made to to which Park, Orders requiringto persons and/or ned areas or restricting activities a means of prohibiting in defi will provide to emergencyresponding for the purpose situations impacting ed actionworld of on heritage take specifi The Review Panel should be made by the Minister on the advice of the Authority. Such orders values. the to in relation powers emergency appropriate response considers that these changes will provide Marine Park. 13.6 and compliance Enforcement will be key eff and compliance challenges for Enforcement 1999 Act Conservation into the future. At present, however, penalties under the penalties under however, At present, the future. into These management actions, whilst potentially applying to the same species, are diff are the same species, to applying potentially actions, whilst These management Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment conservation planning whereas better consistencybetter with updated in light of the importanceupdated of eff plans and plans of management and undertaking permitting functions seek to should proactively implement d d n i . l a n i f

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6 0 / 9 / 2 112/9/06 10:41:04 AM and ective operational ective ective collaboration. ective is a good example of the type of has achieved its original objective, as objective, its original has achieved Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great the next over ective management of the Marine 30 years Park Reef Water Quality Protection Plan Quality Protection Reef Water Barrier and wise use of the Great ective Reef. long-term protection national and cross-jurisdictional implications. issues that have shore Great Barrier Reef Marine Park Act 1975 Act Park Barrier Reef Marine Great ndings of the Review ect the Marine Park but which extend beyond the Marine Park boundaries. The Australian The Australian boundaries. ect but which extend the Marine the Marine beyond Park Park ectively assess the level of protection required, address competing uses of Marine Park resources resources competing uses of Marine address Park required, of protection ectively assess the level ective education about and enforcement of the 2003 Zoning Plan in the future will be essential in the future Plan of the 2003 Zoning ective about and enforcement education specifi ed in the Act, of ‘establishment’ of the Marine Park and putting in place an eff of the Marine ‘establishment’ Act, ed in the of specifi of the Marine and development’ care ‘control, the ensure and institutional management framework to 5(1)). (s. Park an now provides 1998 Oceans Policy can co-exist with conservation. Australia’s use’ ‘reasonable which a as for as well marine areas, management in Australia’s ecosystem-based framework for overarching Areas. of Marine system Protected national representative the through Barrier delivered of the Great Reef Marine areas Park The expansion in protected Queensland marine and through provided as the protection as well Programme, Areas Representative position in a strong that will place the ecosystem of protection has put in place a level national parks, This has been widely acknowledged as an important the longer term. over maintain its resilience to has The introduction of this protection the conservation for achievement of marine biodiversity. especially for intense, been quite that have nevertheless in short-term resulted adjustment pressures businesses. shers and associated fi the Authority. It will therefore be important in place governance arrangements that can It have to will therefore the Authority. eff and off and consider onshore the eff working for relationship applied. broadly arrangement that should be more integrated framework overarching an adequate in scope and detail and do not provide limited fragmented, is agreement intergovernmental considers that a comprehensive The Review Panel the future. for good governance and eff and framework for needed as an essential foundation In particular, governments need to be able to develop the approaches necessary the approaches issues develop be able to address to to governments need In particular, that aff and Queensland governments’ a World Heritage Area. As a party to the United Nations Convention Concerning the Protection of party a Concerning the Protection As Heritage Area. Nations Convention World the United to a of ensuring the ‘duty has acknowledged and Natural Heritage (1972), Australia Cultural a World the conservation cation, protection, generations of the cultural and to future transmission and identifi utmost of its resources…’ the to this end, …will do all it can to [and] natural heritage… to ensure the integrity of the multiple use approach and that the benefi ts of the greater degree of degree greater ts of the and that the benefi the integrity use approach of the multiple ensure to realised. are now provided protection will require improvements to the existing institutional and governance arrangements. the existing institutional and governance arrangements. to improvements will require coastal population change, climate quality, be external (water the Marinewill increasingly to Park sheries). It will not species and fi boundaries (protected Park or will cross and development) growth the manage these issues solely through be possible to 4 6 1

3) Barrier applies the concept of a multiple use park The establishment of the Great Reef Marine in Park 4) ‘Preservation’. to ‘General Use’ of use from a gradation for provides of the Marine The zoning Park 5) Eff 8) collaborative their strengthen maintain and and Queensland governments will need to The Australian 9) Barrier high level, between governments covering the Great Reef are of agreements suite The current 14.1 Overall fi 14.1 Overall 1) listing as in its This is recognised and internationally. Barrier Australians The Great is iconic to Reef 2) Over the the last 30 years 14 and recommendations Findings 6) is of the view that eff The Review Panel 7) and ecosystems on marine resources the pressures considers that in the future The Review Panel d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d 10) The Authority is a regulatory and advisory bodyanditsoperationsare predominantly non- andadvisory isaregulatory TheAuthority 10) 14) It isappropriate to maintainaseparate inrelation It Act to Reef. theGreat Barrier However, itis 14) Thecurrent operatingenvironment hasmany facets. There are policy, overlapping management 13) Theway thatresearch informs assessmentandmanagement planningprocesses, performance 12) theAuthority’s underpinning Thearrangements governanceare multi-layered. Somefeatures of 11) 15) The interaction ofthe Theinteraction 15) 16) The Authority hasalegitimate TheAuthority role inrelation to fi ofits responsibility, aspart as shingactivities 16)

1 6 5 the Authority doesnotfithe Authority t well underthe withtherequirement entity underasinglename. However, for decisionmaking statutory collective Authorities andOffi commercial. therequirements considering In ofthe is also important to ensure thatthe is alsoimportant 1999 to ensure andthe thatthisAct important controls, management. andheritage fienvironment protection, conservation, biodiversity management,pollutionandwater quality sheries coveredmatter andmay or activity address oneormore ofthefollowing: ecosystem management, responsibilities forand regulatory parks. marine inscope, approach, andthe objectives These vary accountable andtransparent mannerisrequired. Park protection inthelong-term oftheMarine inan and reliable meansofassessingperformance The research ispredominantly Aregular provided orpartnerships. byotherbodiesthrough networks a greater emphasisonthebiophysical, withfarlessattention to thesocialandeconomicaspects. isnotsuffi decision making not always beeneff andtheMinister.accountabilities to Council theAuthority isalsoapparenthas thattheMinisterial It isapparent thattheConsultativeIt Committee isnotoperatingeff Committees Committees are andtheReefAdvisory informalLocal Advisory andoverlap. Marine particular,In therole andresponsibilities ReefConsultative oftheGreat Committee, Barrier the arethe existingarrangements eff Act 1997 be more appropriate for to to the besubject theAuthority Environment Protection Conservation Act andBiodiversity 1999 Australian Governmentpoliciesandapproaches to environment protection, asrefl inthe ected protection in the Great Barrier Reef Marine Parkprotection ReefMarine intheGreat and Barrier World Area. Heritage andanintegratedframework approach to ecosystem andfi managementand to environment sheries Environment Protection Conservation Act andBiodiversity 1999 fiGovernment underthe putinplacebytheQueensland managementarrangements sheries Park. isresponsibleincluding withintheMarine for assessingandapprovingThe Department the Settlement arrangements, theQueenslandGovernmentisresponsible for managing fi sheries, forto provideecologically sustainableuse. opportunities Undercurrent Off ecosystem manager, to protect theenvironmental Park andculturalvaluesoftheMarine and example, through to theAuthority. delegationofapproval authority the Commonwealth legislation Park, thatapplieswithinandintheareas suchas surrounding theMarine Park andthere are of andgapsthatshouldbeaddressed. overlaps addition,there isavariety In Conservation ActBiodiversity 1999 Sea InstallationsAct 1987 Sea are duplicative notunnecessarily andthattheyoperate inacohesive andintegrated manner. It . ce Holders ective asaforumective collaborationandcoordination. for policy Great BarrierReefMarinePark Act 1975 ciently clear. The individualelementsare generallyfragmented and have , for whichmeasures are currently inplaceto minimiseduplication,for (Uhrig 2003) the Authority fulfi 2003)theAuthority (Uhrig lsthe requirements for beingaseparate ective whileothersareective andaccountabilitiesunclear. moribund is such that both Acts can apply to a single matter within the Marine canapplyto issuchthatbothActs asinglematter withintheMarine Great BarrierReefMarinePark Act 1975 Commonwealth AuthoritiesandCompanies Act 1997 Environment Protection Conservation Act andBiodiversity Review ofCorporateReview Governance ofStatutory Review of the the of Review Financial ManagementandAccountability andthe . . There is, however, aneedfor aclearer ectively andhasconflectively icting Environment Protection and Great MarinePark Reef 1975 Barrier Act isconsistent withcurrent shore Constitutional . It would . It 112/9/06 10:41:04AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:04 AM ects of restrictions on (Qld) (Representative Areas Programme) Areas (Representative ect businesses. on associated ective with stakeholders engagement as part came into force in July 2004 and implemented the implemented in July 2004 and force came into the eff paid to cient attention (Qld). orts eff achieve to clearly communicated sheries management changes fi recent given zoning decisions c specifi Fisheries (East Coast Trawl) Management Plan 1999 Management Plan Trawl) (East Coast Fisheries 2003 Management Plan Fish) Reef Fin (Coral Fisheries 1999 and Biodiversity Act Conservation Protection Environment 1994 Management Act Fisheries Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Barrier Reef Marine Park Great 2004 Plan Zoning Marine Park Barrier Reef Coast Great Great Barrier Reef Marine Park Zoning Plan 2003 Plan Zoning Park Barrier Reef Marine Great scientifi c underpinning and considered the Authority had handled the rezoning process well. well. process Authorityrezoning the c underpinning had handled the and considered scientifi the shipping and maritime included the tourism interests, industry, safety This stakeholder group and some local sailboat operators conservation the diving industry, groups, c community, scientifi community groups. The stakeholder Authority that the was biased against them. c basis and considered scientifi and commercial recreational to such dissatisfaction in relation expressing did so largely group bait and tackle impacts shing and the associated such as boatyards, on land-based businesses fi The key elements of their and marketing sh processing enterprises. suppliers and land-based fi were: representations relation to fi sheries and for which responsibility is separated across agencies and jurisdictions. agencies responsibility across for which is separated sheries and fi to relation access for recreational fi shing, and in particular shing, the eff fi recreational access for Programme. Representative Areas Programme. The development and implementation of this Programme was a Programme and implementation of this The development Programme. Areas Representative given cant undertaking scope and process, terms in of scale, was no precedent for which there signifi number the extent and the large of the Marine competing uses, and the number of alternative Park, of stakeholders. with the objective of delivering a balanced outcome. Programme Areas of the Representative web-based Extensive documentation and c basis. scientifi considered had a well The Programme number of meetings with and the Authority available was made held a large information to Authority and the nite stretched fi were and resources process The timeframe, stakeholders. nal particularly and analytical work of consultation required, in the fi the volume accommodate consultation stage. nor not assessed, were Plan, the same period over as the 2003 Zoning that occurred plan changes, other factors impacting on the viability were rates). of business (such as fuel prices exchange and high was insuffi shing there fi recreational In to relation 6 6 1

20) Areas the Representative by stakeholders views expressed regarding two alternative were There a) cant conservation supportivewere of the achievement, as a signifi the Programme viewed Many b) Other questioned the stakeholders considerable dissatisfaction expressed with the process, i) not were Programme Areas of the Representative that the objectives and intent perceptions ii) outcomes unmanaged expectations and achievable the process about iii) consideration of socio-economic in particular inadequate and local level, factors at a regional iv) a lack of transparency of factors used in decision making about the weighting v) for and Programme, Areas for the Representative c basis with the scientifi disagreement 17) The 18) The Authority made extensive eff 19) sheries management and fi social and economic impacts zoning of the State regional, The cumulative iii) iv) v) vi) 16) cont. a) icting objectives in similar and confl instruments that apply both at least six legislative are There i) ii) d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d d) the social and economic impacts atalocalandregional thesocialandeconomicimpacts level withState andhowtheyinteract d) thebasisfor decisionsonalternate useisclearandinthepublicdomain c) there issuffi b) are stakeholders appropriately informed oftheoverarching andrationalefor objectives the a) perceptions expressedinregard thattheinformation Theconcerns thatwasprovided bysomestakeholders insubmissionsto to theprocess theRepresentative wasusedto Areas Programme ix) 21) viii) perceptions thatthere hadbeeninconsistent applicationofground rules, lackofnatural perceptions feedback failedto provide thattheAuthority incases adequate explanatory vii) timelinesfor making for inadequate arrangements consultationinsomecasesandtoo-short vi) iii) regularly and publicly reporting on the management of the Marine Park onthemanagementofMarine andtheoutlookin regularly and publiclyreporting iii) research identifyinglong-term neededto inform decisionsbygovernmentandunderstanding ii) Park, having regard andassessingtheconditionofMarine monitoring to of theobjectives i) orfacilitatingresearch, and to inform management, policy andreporting monitoring undertaking b) Park themanagement,underamultipleuseapproach, ReefMarine oftheGreat ecosystem Barrier a) TheReviewPanel recommends thatto achieve shouldfocus thisobjective, theAuthority on 2) TheReviewPanel recommends thatconsistent withanecosystem-based approach to management 1) Role oftheAuthority thetasksitisrequiredand resources to doeff to undertake are addressed inthatcontext. Two areskills musthave factors thattheAuthority critical theexpertise, thecourseofthisReview raised during ofstakeholders thattheconcerns andensuring of theAuthority The recommendations are directed toward strengthening andtransparency thefuture accountability legislative to frameworks address strategic thelong-term Reef. andoperationalneedsoftheGreat Barrier The recommendations Panel oftheReview aimto putinplacerobust governance, managementand 14.2 Recommendations Barrier Reef.Barrier theAustraliancollaboration between andQueenslandgovernmentsinthemanagementofGreat

1 6 7 transparency and accountability suchthat: andaccountability transparency needforpoint to an underlying thezoning plandevelopment process to have ahigherdegree of addressed. Accordingly, theAuthority’s shouldbe: mainfunctions that longer-term issuesare management andonensuring eff day-to-day shouldbe: oftheAuthority objective the primary the long-termprotection, wiseuse, understandingandenjoyment oftheGreat BarrierReef. and localgovernmentinitiatives are understood. comment proposals accountability, whichwould include: close favourite fi shingareas. justice, andinsomecases, politicalinterference where specifi c zoning suggestions were notable to beaccommodated submissions context of risks andpressures. ofrisks context by thepublic protection andwiseuseoftheresource cient timeinrelation oftheproposals to thecomplexity for to prepare stakeholders ectively andthatthereectively mustbeeff Review of the the of Review Great MarinePark Reef 1975 Barrier Act ectively andaccountably ectively ective ective 112/9/06 10:41:05AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:05 AM ) in relation to fi sheries issues. fi to ) in relation Reef Water Quality Protection Plan Quality Protection Reef Water ecting the protection and use of the Marine Park and World World and ecting and use of the Marine the protection Park support to cials established the Ministerial identify to Council Reef Water Quality Protection Plan Quality Protection Reef Water ect fi sheries and of other substantive matters such as the management of sheries matters substantive and of other ect fi issues aff shore and land environments so as to provide for the long-term protection and wise use of the Great and wise use of the Great the long-term protection for provide so as to and land environments Barrier Reef between the Authority the Ministerialinterrelations the Department and Council, day-to-day with the detailed arrangements for the Marine subject Park, Authority, the to agreements management in separate and off onshore Heritage Area joint policyissues requiring subject or policy the direction development and, to coordination with the appropriate steering committees these issues through progress to of the Council, and expertiseresponsibilities activities that aff that similar to an approach develop wish to may The Council islands within the marine parks. quality manage water (the used to the Marine Park, including the areas that should be declared to be a part to the Marine be declared that should of the Park the areas including Park, performing the Act, Regulations and zoning functions permitting and approval and enforcing plan the Marineto Park. body corporate. Queensland governments in management of the Great Barrier of the Great Queensland governments in management by: Reef should be enhanced should continue, in particular:should continue, 8 6 1

v) of regulatory collaboration and coordination and management of improving a clear role Structure of the Authority 5) that the Authority continue as a statutory recommends authority The Review Panel and a ii) and operational protocols accountabilities, functions, powers, clearly describes the nature, iii) for day-to-dayresponsible management of to be rms that Queensland will continue confi b) through: the Ministerial strengthening as a forum Council i) a clear charter joint policy both to and policy for development in relation coordination ii) eld management and direction of day-to-day oversight fi broad of providing the role iii) of offi a standing committee iv) the responsibility for 4) arrangements and collaborative between the the Australian recommends The Review Panel a) that: agreement intergovernmental establishing a comprehensive i) of marine management and collaborative has as its clear objective facilitating the integrated Agreement between governments and relationship and relationship governments between Agreement with Queensland 3) 7 and 8) functions Act (ss. set out in the current that the Authority’s recommends The Review Panel a) of and development the care making advising and to the Minister to in relation recommendations b) plans and plans of management zoning developing c) This includes with the Queensland Government. cooperatively Marine the managing Park d) the Marine carrying to Park relevant research out or arranging e) of education, advisory the provision services for or arranging and information providing relating d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d ) The ReviewPanel recommends move fromto thattheAuthority the beingsubject 9) TheReviewPanel bystaff recommends besupported thattheAuthority specifi undertaking delegated bythemembers. ofthe Authority cfunctions e) 8) for inthedischarge theAuthority ofitsduties arranging support d) administrationoftheAuthority day-to-day c) headunderthe therole ofagency b) therole ofchiefexecutive for ofthe thepurposes a) therole ofchief TheReviewPanel perform oftheAuthority recommendsChairperson thatthe 7) Remunerationandresignation provisions shouldremain ascurrently provided for inthe g) shouldbeappointed for Members ofupto aterm fi for ve years, withtheopportunity f) ontheadvice oftheGovernor-General Theappointmentofmembersshouldbetheresponsibility e) oftheAustralian Thenominationofothermembersshouldbetheresponsibility Government,in d) Onemember, shouldbenominated bytheQueenslandGovernment Chairperson, notbeingthe c) andamaximumof andaminimumoftwo Chairperson a shouldcomprise TheAuthority b) ThemembersoftheAuthority, offi asstatutory a) TheReviewPanel recommends be constituted review consistently thattheAuthority withtheUhrig 6) i) those functions provided thosefunctions for inthe i) shouldhave TheAuthority responsibilityfor: a) TheReviewPanel recommends responsibilities approach aprinciples andtherelationship to policy of 11) 0 TheReviewPanel recommends that,to avoid confl icts,the chief executive offi 10) ii) operational policy orguidelines, thatis, operational policy policiesrelated to theadministrationofanestablished ii) Role of the Minister andtheDepartment oftheMinister Role

1 6 9 Authorities andCompanies Act 1997 agency’ for ofthatAct. thepurposes Act 1999 Service executive offi executive managementstructure, withanoverarching governancerole for theMinister. national oracombination. are basedonrespective roles, andwhethertheissuesare local, legalauthority State, Commonwealth, agenciesandtheMinister. otherportfolio to theDepartment, the Authority proposedThe principles powers, underthe offunctions,orexercise to directionbythemembersinrelationsubject to of theperformance ‘prescribed agency’. 1997 Barrier ReefMarinePark Act 1975 reappointment. of theMinister. consultation withtheQueenslandGovernment. in consultationwiththeAustralian Government. appointments part-time. four othermembers. shouldbeappointed onafull-timebasis,Chairperson withallother The andindependence. shouldnotberepresentational. Members expertise government policy, regime regulatory and/orprogramme. Parkbe regulated oftheMarine ormanagedoccurswithintheboundaries cer whichwould involve responsibilityfor: . These staff . These Financial ManagementandAccountability Act 1997 , alongwiththechiefexecutive offi to the . Public Service ActPublic 1999 Service Financial ManagementandAccountability Act 1997 Great BarrierReefMarinePark Act 1975 ceholders, shouldbeappointed for theirrelevant Financial ManagementandAccountability Act Review of the the of Review cer, shouldconstitute a ‘statutory andthe Great MarinePark Reef 1975 Barrier Act employed underthe cer shouldnotbe Public Service ActPublic 1999 Service where the activity to where theactivity Commonwealth asa Great Public . 112/9/06 10:41:05AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:05 AM Great Barrier Reef Marine Park Marine Park Barrier Reef Great should be prepared by the Authority and be peer reviewed by an by the Authority and be peer reviewed should be prepared should provide a regular reportand a regular on the management of the Marineshould provide Park should include analyses of: . plans and plans of management zoning including ect of management measures, Outlook Report Outlook Report Outlook Report use, biodiversity, ecosystem health and resilience and social and economic systems health and resilience ecosystem biodiversity, use, boundary Department Government agencies. or other Australian view Panel recommends that there be a regular and reliable means of assessing performance and reliable be a regular that there recommends view Panel appropriately qualifi ed expert by the panel appointed Minister. qualifi appropriately being assessed. and human systems times of the biological the response to regard and having the overall condition of the ecosystem, as well as a risk-based assessment of the longer-term longer-term assessment of the as a risk-based as well condition of the ecosystem, the overall outlook. agencies, should be employed where: should be employed agencies, Department Government agencies should be taken Australian where: and other relevant Outlook Report in the long-term protection of the Marine Park in an accountable and transparent manner. This This manner. in an accountable and transparent of the Marinein the long-term protection Park a periodic a statutory for through requirement should be delivered Authority, senior management of the Authority, the Department portfolio of the Authority, senior management and other relevant agencies Authority, operational and budget policy, research, review should meet at least twice systematically annually to issues. government expectations of performance, of and the oversight Statement the Minister a regular issue Expectations Intent. of with a Statement the Authority and that respond 0 7 1

d) ve-yearlyreport this being a suitable intervalfor a basis, of this scope should be on a fi Publication v) including those external on the ecosystem, the Marine to risks Park and pressures The vi) c) factors regional social and economic biophysical, vii) data. and qualitative based on quantitative the Marine Park the outlook for b) The b) eff the iv) iii) and biodiversity including health, resilience the condition of the ecosystem, Transparency, accountability and engaging with stakeholders and engaging accountability Transparency, Outlook Report Re 14) The The a) i) and non-commercial use of the Marine commercial the ongoing Park ii) and recreational time against baseline and benchmark over data, including commercial trends b) the Department portfolio the Authority, and relevant A whole of portfolio involving approach, i) boundaries Marine transcends the matter Park ii) the Marine adjacent to Park in areas approach and consistent an equivalent for is a need there iii) c) Government is required. a decision by the Australian A whole of portfolio and/or whole-of-government the the Authority, involving approach i) external the Marine or its impacts, are to Park of the matter, application ii) national or cross-jurisdictional policy are there precedent implications or issues of iii) is a major budget impact there such as structural adjustment assistance 12) iv) by the the interaction between the Department and regulation legislation improve that, to consequential changes in policy, recommends and the is a need for there The Review Panel 13) clarity structure, transparency and provide setting of in the that, to recommends The Review Panel d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d e) The Authority couldalsopublishminutes ofcommittee TheAuthority meetingsandcopiesofadvicefrom the e) To promote andaccountability, transparency ofreference theterms andappointmentprocesses d) Appointmentanddismissalofcommittee membersshouldbetheresponsibilityofall c) ofreference Theterms Committees shouldestablishthattherole is oftheLocal Advisory Marine b) ofreference shouldestablishclearterms TheAuthority andappointmentprocesses for the a) Board annually. would to beexpected meettwice TheAdvisory TheReviewPanel Committees recommends andReefAdvisory thattheLocal Advisory Marine g) 16) Board. to theAdvisory shouldprovide secretariat support TheDepartment f) Board. statusontheAdvisory shouldhave TheAuthority onlyobserver e) Board shouldcontinueto Appointmentsto betheresponsibilityofMinister. theAdvisory d) Board matters asrequested would provide TheAdvisory bytheMinister, adviceonparticular for c) Board would provide withameansto TheAdvisory accessadviceonspecifi theMinister cissues b) ofreference withterms Board shouldbenon-statutory TheAdvisory issuedbytheMinister. a) TheReviewPanel recommends thattheConsultative Committee bereconstituted asanAdvisory 15) committees Advisory f) Publication ofthe The e) b) The Minister shouldberequired TheMinister to approve thecommencementofaprocess to review and b) andassociated TheAct Regulationsshouldprovide of, thatareview andamendmentofall, orpart a) TheReviewPanel recommends thatthezoning planprocess bemade more transparent and 17) Zoning planprocess

1 7 1 basis isnotnecessary. Committees shouldbeformally to constituted theAuthority, ascommittees reporting butastatutory Board for to theMinister theEnvironment andHeritage. regulatory framework (see Recommendations 19to (seeRecommendations framework 21)andinadministrative arrangements: regulatory accountable byenhancingtheprocess for developing zoning plansthrough changesto the committees onitswebsite. for thecommittees shouldbepublicly available. alone. Chairperson ratherthanthe collectively of theAuthority provide issues-basedadviceonoperationalissues. to provide area-based adviceto theAuthority, Committees isto andtherole Advisory oftheReef committees. Park. useoftheMarine example coastaldevelopment andIndigenous environmentalIndigenous, andotherrelevant bodies. related Park to Marine protection anduse, withmembersbeingdrawn from business, community, consideration ofbroader issuesbygovernments. inthepublicdomain. accountability the periodic the periodic amend thezoning plan. This decisionshouldbemadeontheadviceofAuthority, aswell as sevenafter years. into eff the zoning planshouldnotbecommenceduntilat least seven years from thedate theplancame Outlook Report Report Outlook ect. Suchareview isnotrequiredect. seven after years, butmay becommencedatany time Outlook Report Report Outlook Outlook Report Report Outlook should be a key inputforshould beakey any future changesto zoning plansandthe (Recommendation 14)andotherrelevant information. and tablinginParliament isproposed to ensure full Review of the the of Review Great MarinePark Reef 1975 Barrier Act 112/9/06 10:41:05AM 2 / 9 / 0 6

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6 0 / 9 / 2 112/9/06 10:41:05 AM should . This Environment Environment and the and the Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great should not unnecessarily each other and duplicate should include a more comprehensive objects section comprehensive should include a more Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great development of the zoning plan will proceed. of the zoning development c and policy rationale. of their scientifi plan. the zoning that recognises the conservation Barrierthat recognises of the Great Reef as an overarching and protection Subsidiary with the objective. a range of uses consistent for objectives should include providing obligations under the Australia’s lling fulfi sustainable development, principles of ecologically and Natural Heritage as it relates Cultural World of the Concerning the Protection Convention management with Queensland and local and facilitating cooperative Barrier Great the Reef, to Indigenous business and industry. communities, people, governments, should release a report, drawing on relevant scientifi c and socio-economic explaining research, scientifi a report, relevant on should release drawing be reviewed. needs to zoning why the to the Authority to issue directions relation in to the power The Minister have would this time. process. Minister. by the approved create a zoning plan and another on a draft a zoning plan, should be retained. create Socio-economicthree. analysis should be undertaken prior consultation and made available to ned. and refi plan is developed as the zoning and be updated the Authority to suggest changes for to the power the Minister should only have particular, consideration. the Minister report amend the plan, but must such changes to may any Authority the Minister, to at the time the plan is tabled. Parliament the Authority make acceptance by the Minister and Parliament, that, following recommended zoning plan and in particular nal the fi stakeholders to on the rationale for available information This could include the publication of a nal plans. changes between the draft and fi for the reason and its outcomes. synopsis of the process should be achieved through the following means: the following through should be achieved be made consistent with current Australian Government policies and approaches to environment environment to Government policies and approaches Australian with current be made consistent ected in the as refl protection, should operate in a cohesive and integrated manner. The manner. and integrated in a cohesive should operate Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection 2 7 1

a) The a) Environment Protection and Biodiversity Conservation and Biodiversity Act 1999 Protection Environment Updating the Act and streamlining regulation Updating the Act and streamlining Consistency between the 18) that the recommends The Review Panel c) Authorityzoning plan), the a to create/amend the intention rst consultation phase (on At the fi d) at plan should also be released the zoning amending for process Information on the proposed e) Principles should be based on a set of published Operational of zoning The development i) set out the policy These principles would and objectives on which the parameters ii) should be supported explanation and publicly available The Operational Principles by a robust iii) in developing the Operational Principles to regard have to The Authority should be required f) to one on the intention two public consultation phases, statutory for The current requirements g) to one month be extended public comment at each stage should from The minimum period for h) remain. zoning plan should In nal Ministerial of the fi arrangements The current for approval i) by the nal plan delivered the fi changes not be incorporated into suggested Should the Minister’s j) and accountable it is is both transparent plan process of the zoning that the outcome ensure To d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d ) Thecurrentspecifi objectives edinthe a) TheReviewPanel recommends that,inadditionto Recommendations17,19and21,there shouldbe 20) (g),(h),and(i)onthe TheReviewPanel recommends 17(a),(e),(f), thatRecommendation 19) Zoning plans shouldbeexplicitlyrequired TheAuthority into to accountspecifi take when edobjectives b) 2 TheReviewPanel recommends that,to address duplicationandprovide amore consistent regulatory 22) Permitting andenvironmental assessment impact b) Cross-linkages to the Cross-linkages b) a) Where a proposed activity within the Marine Park to WherewithintheMarine have islikely aproposed asignifi activity cantenvironmental a) ) Consistent with the i) i) The Authority shouldbedelegated responsibilityfor TheAuthority assessmentandapproval bytheMinister i) 1 TheReviewPanel recommends thatitbepossibleto amendthezoning planfor of thepurpose 21)

1 7 3 zoning. to isexpected pursueindeveloping andconsiderationstheAuthority ofobjects a clearframework development ofzoning andassociated plansbeincludedintheAct Regulations. environment, the primary basisfor Park. environmental assessmentandapprovalwithintheMarine impact ofactivities primary Parliament. requirements shouldapplyto suchamendments. Suchamendmentsshouldbedisallowableby nature canbecorrected, for geographic example, transcribed coordinates. incorrectly Noconsultation errors,correcting provided canensure legaldrafting thatonlyerrors ofatechnical andinsubstantial Protection Conservation Act andBiodiversity 1999 principle, asdefisustainable development andto applytheprecautionary nedinthe functions,for regulatory example, ofecologically into to accounttheprinciples take performing enhanced to provide greater specifi framework. andamore city contemporary Barrier ReefMarinePark Act 1975 Conservation Act 1999 theassessmentandapproval requirementsimpact, ofthe incorporated. Marine Park Act 1975 would thensuffi Heritage to take theleadand/orfor to take Heritage approval to betheresponsibilityofMinister. detailed assessment,itmay bemore oftheEnvironment appropriate for and theDepartment signifi Park, carries outside theMarine cantenvironmentalrisks and/or requires complexand in mostcases. However, insomecases, for examplewhereisprimarily aproposed activity Conservation Act 1999 plansmadeunderthe or wildlife conservation Principles Management andany relevantIUCN Reserve recovery, threat abatement and/ shouldberequired andthe Authority accounting purposes to have regard to theAustralian shouldbeassigned for anIUCNprotectedtype areas nationalandinternational category Environment Protection Conservation Act andBiodiversity 1999 ce for requirements ofpermission thepurposes underthe . shouldapply. An approval underthe Environment Protection Conservation Act andBiodiversity 1999 Environment Protection Conservation Act andBiodiversity 1999 . . Great BarrierReefMarinePark Act 1975 , in making certain decisionsunderthe certain , inmaking Environment Protection andBiodiversity Review of the the of Review Environment Protection andBiodiversity Great BarrierReefMarinePark Act 1975 Great MarinePark Reef 1975 Barrier Act shouldprovide the Great BarrierReef (s. 32)shouldbe shouldbe eachzone Environment Great

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6 0 / 9 / 2 112/9/06 10:41:06 AM , Great Great permit will permit will ences for for ences to matters of matters to Environment Environment y requirements y requirements . Environment Protection and Biodiversity Protection Environment Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great , Regulations and zoning plan. Given the plan. Given , Regulations and zoning maining duplicative regulator permits for the purpose of the permits for and vice versa. These arrangements should provide, These arrangements should provide, and vice versa. Environment Protection and Biodiversity Conservation Act and Biodiversity Act Conservation Protection Environment species is undertakenecting protected predominantly would contain provision for assessment by public environment by public environment assessment for contain provision would activities to ences do not apply authorised under an accredited Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment Environment Protection and Biodiversity Conservation Act 1999 and Biodiversity Act Conservation Protection Environment currently being developed. Among other things, these changes will extend Among other things, being developed. currently Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great Great Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park Great , in considering permit applications the Authority should be required to consider (among , in considering to permit applications the Authority should be required and Biodiversity Conservation Regulations, to the extent to which they apply to environmental and Biodiversity Conservation environmental the extent which they apply to to to Regulations, impact approval assessment and and Biodiversity Conservation Protection Regulations out in the Environment 1999 and Biodiversity Act Conservation Protection Environment view Panel recommends that, to address re that, to address recommends view Panel requirements, timelines, factors the Authority and public timelines, issuing permits, must consider in requirements, The part permission under to all activitiesrequire should apply that requirements. cation notifi and accreditation of the assessment plan with the exception the Act, Regulations and zoning as the separate should remain This process Use of Marine Agreements. Resources Traditional of time. over nement refi require and may a new initiative are Agreements on application documentation and undertaken assessment based Streamlined against tape’. activities with minimal risk for and impact considerations should be available and/or standardised the activity in-depthwhere of an existing assessment, such as continuation not require does Given appropriate. where should be available assessment requirements intensive More activity. the application of the national environmental signifi cance, including in the Marine Park, including in the Marine cance, it is not expected the that signifi national environmental other things): Barrier Reef Marine Park Act 1975 Act Barrier Reef Marine Park impact report statement. or environmental 1999 Regulations and zoning plan. plan. Regulations and zoning seek to with and proactively be consistent and permitting, management, Special Management Areas activities done in accordance with a permit issued by the Authority. These amendments will also activities with a permit issued by the Authority. done in accordance species off that protected provide Use of Marine Agreement. Resources Traditional 1999 and Biodiversity Act Conservation Protection an activity that where example, aff for outside the Marine an Park, Conservation Act 1999 Act Conservation species off protected from exemption of the Act the current cetacean provisions the to of a permission the under the granting the basis for provide as required by the by the as required importance of this function the Marine management and users of to it is recommended Park, issuing permissionsa single part within be consolidated for of the that the basis and procedures Act or Regulations. (for activities occurring(for arrangements the Marine both within and outside be put in place Park), accredit to 4 7 1

26) of plans that actions by the Authority recommends zoning, such as developing The Review Panel 25) The Re 25) The Protected species Protected 24) supports the amendments to the proposed The Review Panel 23) permissions issuing for Authority the be responsible to should continue Subject the above, to a) part This new including permit application should describe permitting assessment processes, and b) ‘red minimise the regulatory to in order should be available Varying assessment processes ii) Heritage as set Management Principles the National Heritage/Commonwealth relevant, where iii) conservation and/or wildlife abatement plans made under the threat recovery, relevant any i) Protection Heritage as set out in the Environment Management Principles World the Australian c) the with integration promote In to order d d n i . l a n i f

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G B R i n t e r n a l s f i n a l . i n d d 8 TheReviewPanel proposed amendmentsto the supports 28) managementpowersEmergency TheReviewPanel recommends thattheinvestigation, enforcement andoff 27) Enforcement andcompliance

1 7 5 implement Minister ontheadviceofAuthority.Minister managementpowers applyingtoemergency Reef. theGreat Barrier Orders shouldbemadebythe protect all matters ofnationalenvironmental signifi cance. Thischangewillestablishappropriate Conservation Act 1999 and effi Great BarrierReefMarinePark Act 1975 Attorney-General’s Department. Conservation Actand Biodiversity 1999 recovery, threat abatement and wildlife conservation plans when undertaking suchactivities. recovery, threat planswhenundertaking abatement andwildlife conservation Review Panel recommends thatthisbeachieved to byrequiring have theAuthority regard to relevant cient enforcement inthefuture andto achievewith better consistency Environment Protection Conservation Act andBiodiversity 1999 that will allow Conservation Orders underPart to 17oftheAct bemadeto thatwillallowConservation provisions. This review shouldbedoneinconsultationwiththe be reviewed and updated in light of the importance ofeff bereviewed andupdated inlightoftheimportance Environment Protection andBiodiversity Review of the the of Review Great MarinePark Reef 1975 Barrier Act protected speciesplans. The ence provisions ofthe Environment Protection ective ective 112/9/06 10:41:06AM 2 / 9 / 0 6

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References Access Economics 2005, Measuring the Economic & Financial Value of the Great Barrier Reef Marine Park— Report by Access Economics Pty Limited for the Great Barrier Reef Marine Park Authority, Great Barrier Reef Marine Park Authority, Australian Government, Townsville. American Association for the Advancement of the Sciences 2001, Scientifi c Consensus Statement on Marine Reserves and Marine Protected Areas, National Center for Ecological Synthesis and Analysis, University of California, California. Association of Australian Ports and Marine Authorities (AAPMA 2005), 2004–05 Trade Statistics, accessed at www.aapma.org.au/tradestats on 30 March 2006. Australian Government 2004, Marine Protected Areas and Displaced Fishing: A Policy Statement, available at http://www.deh.gov.au/coasts/mpa/displaced-fi shing.html, accessed on 30 March 2006. Australian Government 2005, Securing our Fishing Future, available at http://www.aff a.gov.au, accessed on 30 March 2006. Australian Marine Sciences Association 2002, Position Statement on Marine Protected Areas, Australian Marine Sciences Association Bulletin 159 July 2002, accessed at www.amsa.asn.au/PDF-fi les/ Submissions/ Marine-Protected-Areas.pdf on 30 March 2006. Australian National Audit Offi ce (ANAO) 1988, Commonwealth Management of the Great Barrier Reef, The Auditor-General Audit Report No. 33 1998, Australian National Audit Offi ce, Canberra. Australian National Audit Offi ce (ANAO) 2003, Commonwealth Management of the Great Barrier Reef Follow-up Audit, The Auditor-General Audit Report No. 8 2003–04 Australian National Audit Offi ce, Canberra. Australian and New Zealand Environment and Conservation Council (ANZECC) 1999, Strategic Plan of Action for the National Representative System of Marine Protected Areas: A Guide for Action by Australian Governments, Department of the Environment and Heritage, Canberra. Australian State of the Environment Committee 2001, Australian State of the Environment Report 2001, Independent Report to the Minister for the Environment and Heritage, CSIRO Publishing on behalf of the Department of the Environment and Heritage, Canberra. Birtles R.A., Valentine P.S., Curnock M., Arnold P., Dunstan A. 2002, Incorporating Visitor Experiences into Ecologically Sustainable Dwarf Minke Whale Tourism in the Northern Great Barrier Reef, CRC Reef Technical Report no. 42, CRC Reef Research Centre, Townsville. Blamey R. and Hundloe T. 2003, Characteristics of Recreational Boat Fishing in the Great Barrier Reef Region: Report to the Great Barrier Reef Marine Park Authority, Great Barrier Reef Marine Park Authority, Townsville. Brown R. 1997, Independent Review of the Great Barrier Reef Marine Park Authority: Report submitted to the Hon. Senator Robert Hill, Minister for the Environment, R. Brown and Associates, Brisbane. Bureau of Rural Sciences 2003, Implementing the Representative Areas Program in the Great Barrier Reef Marine Park: Assessment of the Potential Social Impacts on Commercial Fishing and Associated Communities, Department of Agriculture, Fisheries and Forestry, Canberra. Bureau of Rural Sciences (BRS) 2004, Fisheries Status Reports 2004, Department of Agriculture, Fisheries and Forestry, Canberra. Bureau of Tourism Research (BTR), Bailey G., Riely D., Heaney L., Barry T. and Salma U. 2003 Assessment of Tourism Activity in the Great Barrier Reef Marine Park Region, Bureau of Tourism Research, Canberra.

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33806806 GBRGBR internalsinternals final.inddfinal.indd 178178 112/9/062/9/06 10:41:0610:41:06 AMAM Clark J.R., B. Causey, and Bohnsack J.A. 1989 Benefi ts from Coral Reef Protection: Looe Key Reef, Florida, 6th Symposium on Coral and Ocean Management, Charleston, South Carolina, USA. Committee of Inquiry into the National Estate 1974, Report on the National Estate, Australian Government Publisher, Canberra. Dalton V. 2003, Day-to-Day Management Review, Great Barrier Reef Marine Park Authority, Townsville. Davis K.L.F., Russ G.R., Williamson D.H., Evans R.D. 2004, ‘Surveillance and poaching on inshore reefs of the References Great Barrier Reef Marine Park’, Coastal Management 32(4): 373–387. Department of the Environment and Heritage (DEH) 2001, Guidelines for the Ecologically Sustainable Management of Fisheries, Canberra. Department of the Environment and Heritage (DEH) 2004, Assessment of the Queensland East Coast Otter Trawl Fishery—Environmental Assessment under the Environment Protection and Biodiversity Conservation Act 1999, Canberra. Department of the Environment and Heritage (DEH) 2005, Australia’s Response to Climate Change, Department of the Environment and Heritage, Canberra. Fabricius K.E. 2005, ‘Eff ects of terrestrial runoff on the ecology of corals and coral reefs: review and synthesis’, Marine Pollution Bulletin 50: 125–146. Furnas M. 2003, Catchments and Corals: Terrestrial Runoff to the Great Barrier Reef, Australian Institute of Marine Science, Townsville. Futureye Pty Ltd. (Futureye) Teh-White K., Houston S., Baxter C., Levine J. and White P. 2005, Great Barrier Reef Marine Park Authority: Enhanced Community Partnerships, Futureye Pty Ltd., Melbourne. Gilbert, M. 2001, Population and major land use in the Great Barrier Reef catchment area: and temporal trends, Great Barrier Reef Marine Park Authority, Townsville. Global Coral Reef Monitoring Network (GCRMN) 2004, Status of Coral Reefs of the World: 2004, Wilkinson, C. (ed.), Australian Institute of Marine Science, Townsville. Graham, N.A.J., Evans, R.D., Russ, G.R. 2003, ‘The eff ects of marine reserve protection on the trophic relationships of reef fi shes on the Great Barrier Reef’, Environmental Conservation 30(2): 200–208. Great Barrier Reef Marine Park Authority (GBRMPA) 1994, The Great Barrier Reef, Keeping it Great: A 25 Year Strategic Plan of the Great Barrier Reef World Heritage Area, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Marine Park Authority (GBRMPA), World Bank & IUCN 1995, A Global Representative System of Marine Protected Areas, available from the Department of the Environment and Heritage at http://www. deh.gov.au/coasts/mpa/nrsmpa/global/. Great Barrier Reef Marine Park Authority (GBRMPA) 1998, Preliminary Study of Potential Impacts on the Great Barrier Reef World Heritage Area from Coastal Urban Development, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Marine Park Authority (GBRMPA) 2002, Great Barrier Reef Catchment Water Quality Action Plan, A Report to Ministerial Council on Targets for Pollutant Loads, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Marine Park Authority (GBRMPA) 2003a, Great Barrier Reef Marine Park: Basis for Zoning Decisions Report, Consultation Draft, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Marine Park Authority (GBRMPA) 2003b, Audit of the Management of the Queensland East Coast Trawl Fishery in the Great Barrier Reef Marine Park, Report prepared by Dorothea Huber, Senior Project Manager, Fisheries Issues Group, Great Barrier Reef Marine Park Authority, Townsville.

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References Great Barrier Reef Marine Park Authority (GBRMPA) 2005a, Report on the Great Barrier Reef Marine Park Zoning Plan 2003, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Marine Park Authority (GBRMPA) 2005b, Research Needs for the Protection and Management of the Great Barrier Reef Marine Park 2005, Great Barrier Reef Marine Park Authority, Townsville. Great Barrier Reef Protection Inter-departmental Science Panel 2002, A Report on the Study of Land Sourced Pollutants and Their Impacts on Water Quality In and Adjacent to the Great Barrier Reef, Department of the Environment and Heritage, Canberra. Great Barrier Reef and Torres Strait Shipping Management Group 2003, Great Barrier Reef & Torres Strait Shipping Impact Study, Australian Maritime Safety Authority, Canberra. Great Barrier Reef Shipping Review Steering Committee 2001, Review of Ship Safety and Pollution Prevention Measures in the Great Barrier Reef, Australian Maritime Safety Authority, Canberra. Hoegh-Guldberg O. 2004, ‘Coral reefs in a century of rapid environmental change’, Symbiosis 37: 1–31. Hughes T.P., Baird A.H., Bellwood D.R., Card M., Connolly S.R., Folke C., Grosberg R., Hoegh-Guldberg O., Jackson J.B.C., Kleypas J., Lough J.M., Marshall P., Nyström M., Palumbi S.R., Pandolfi J.M., Rosen B., Roughgarden J. 2003, ‘Climate change, human impacts, and the resilience of coral reefs’, Science 301: 929–933. Hunt C. 2005a, Estimating the Impact on Recreational Fishing-dependent Businesses of the Great Barrier Reef Marine Park Rezoning, A Report for the Department of the Environment and Heritage, Canberra. Hunt C. 2005b, Estimating the Impact on Land Based Businesses of the Representative Areas Program and of Fishery Management Changes in the Great Barrier Reef Marine Park, A Report for the Department of the Environment and Heritage, Canberra. Intergovernmental Panel on Climate Change 2001, Climate Change 2001: Synthesis Report. A Contribution of Working Groups I, II, and III to the Third Assessment Report of the Intergovernmental Panel on Climate Change [Watson, R.T. and the Core Writing Team (eds.)], Cambridge University Press, Cambridge, United Kingdom. IUCN (The World Conservation Union) 2003, Fifth World Parks Congress: Recommendations, available at http://www.iucn.org/themes/wcpa/wpc2003/index, accessed on 30 March 2006. Lawrence D., Kenchington R. and Woodley S. 2002, The Great Barrier Reef Finding the Right Balance, Melbourne University Press, Melbourne. Lough J.M., Coral bleaching: thermal stress indices, Australian Institute of Marine Science, www.aims.gov.au, accessed on 25 August 2006. Mapstone B.D., Davies C.R., Little L.R., Punt A.E., Smith A.D.M., Pantus F., Lou D.C., Williams A.J., Jones A., Ayling A.M., Russ G.R., McDonald A.D. 2004, The Eff ects of Line Fishing on the Great Barrier Reef and Evaluations of Alternative Potential Management Strategies, CRC Reef Technical Report no. 52, CRC Reef Research Centre, Townsville. Marsh H., Lawler I. 2001, Dugong Distribution and Abundance in the Southern Great Barrier Reef Marine Park and Hervey Bay: Results of an Aerial Survey in October–December 1999, GBRMPA Research Publication no. 70 (Part 2), Great Barrier Reef Marine Park Authority, Townsville. McCulloch M.T., Fallon S., Wyndham T., Hendy E.J., Lough J.M., Barnes D.J. 2003, ‘Coral record of increased sediment fl ux to the inner Great Barrier Reef since European settlement’,Nature 421: 727–730.

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33806806 GBRGBR internalsinternals final.inddfinal.indd 180180 112/9/062/9/06 10:41:0610:41:06 AMAM National Recreational and Indigenous Fishing Survey 2003, Henry G.W. and Lyle J.M. (eds.), Australian Government Department of Agriculture, Fisheries and Forestry, Canberra. Natural Resource Management Ministerial Council (NRMMC) 2003, Framework for a National Cooperative Approach to Integrated Coastal Zone Management, accessed at http://www.deh.gov.au/coasts/publications/ framework/index.html on 4 April 2006. Owen S. and Hansen G. 1994, Review of the Environmental Management Charge, Great Barrier Reef Marine

Park Authority, Townsville. References PDP Australia 2003, An Economic and Social Evaluation of Implementing the Representative Areas Program by Rezoning the Great Barrier Reef Marine Park: Report on the Revised Zoning Plan, PDP Australia, Sydney. Pearce P., Moscardo G., Woods B. 1997, ‘Understanding the tourist market’, in: The Great Barrier Reef: Science, Use and Management; A National Conference: Proceedings, 25–29 November 1996, James Cook University, Townsville, Australia, Great Barrier Reef Marine Park Authority, Townsville, Volume 1, 343–352. Poiner I., Glaister J., Pitcher R., Burridge C. and Wassenberg T. 1998, Final Report on Eff ects of Trawling in the Far Northern Section of the Great Barrier Reef Marine Park: 1991–1996, CSIRO Division of Marine Research, Cleveland, Queensland. Polunin N.V.C. and Roberts C.M. 1993, ‘Greater biomass and value of target coral reef fi shes in two small Caribbean marine reserves’, Marine Ecology Progress Series 100: 167–176. Pulsford, J. S. 1996, Historical nutrient usage in coastal Queensland river catchments adjacent to the Great Barrier Reef Marine Park, Research Publication no. 40, Great Barrier Reef Marine Park Authority, Townsville Productivity Commission 2003, Industries, Land Use and Water Quality into the Great Barrier Reef Catchment, Research Report, Canberra. Queensland Government 2005, 2004 Annual Status Report: Queensland East Coast Trawl Fishery, Department of Primary Industries and Fisheries, Brisbane. Roberts C.M. and Polunin N.V.C 1994, ‘Hol Chan: demonstration that marine reserves can be remarkably eff ective’, Coral Reefs 13: 90. Sturgess G.L. 1999, The Great Barrier Reef Partnership: Cooperation in the Management of a World Heritage Area; A Report into the Review of the Relationships of the Commonwealth and Queensland Governments in Respect of the Great Barrier Reef, Queensland Government, Brisbane. Sweatman H., Abdo D., Burgess S., Cheal A., Coleman G., Delean S., Emslie M., Miller I., Osborne K., Oxley W., Page C., Thompson A. 2004, Long-term Monitoring of the Great Barrier Reef, AIMS Status Report no. 6, Australian Institute of Marine Science, Townsville. Tourism Review Steering Committee 1997, Review of the Marine Tourism Industry in the Great Barrier Reef World Heritage Area, Great Barrier Reef Marine Park Authority, Townsville. Tourism and Recreation Reef Advisory Committee 2002, A Co-operative Framework for the Sustainable Use and Management of Tourism and Recreation Opportunities in the Great Barrier Reef Marine Park, Great Barrier Reef Marine Park Authority, Townsville. Whitehouse J.F. 1993, Managing Multiple Use in the Coastal Zone: A Review of the Great Barrier Reef Marine Park Authority, Australian Government Publishing Service, Canberra. Williams D. McB., Roth C.H., Reichelt R.E., Ridd P.V., Rayment G., Larcombe P., Brodie J., Pearson R., Wilkinson C., Talbot F., Furnas M., Fabricius K., McCook L., Hughes T.P., Hoegh-Guldberg O. and Done T. 2002, The Current Level of Scientifi c Understanding on Impacts of Terrestrial Run-off on the Great Barrier Reef World

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33806806 GBRGBR internalsinternals final.inddfinal.indd 181181 112/9/062/9/06 10:41:0710:41:07 AMAM Heritage Area, CRC Reef Research Centre, Townsville. Williamson D. 2000, An Assessment of the Eff ectiveness of Management Zoning in Protecting Reef Fish Stocks of the Palm Islands and the Whitsunday Islands, Central Section, Great Barrier Reef. Unpublished report,

References Department of Marine Biology & Aquaculture, James Cook University. World Resources Institute, International Center for Living Aquatic Resources Management, World Conservation Monitoring Centre, United Nations Environment Programme, [Bryant D., Burke L., McManus J. and Spalding M.] 1998, Reefs at Risk: A Map-based Indicator of Potential Threats to the World’s Coral Reefs Uhrig J. 2003, Review of Corporate Governance of Statutory Authorities and Offi ce Holders, Australian Government, Canberra.

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Appendices Terms of Reference for the Review

Background

The Great Barrier Reef Marine Park Authority (the Authority) was established under the Great Barrier Reef Marine Park Act 1975 (the GBRMP Act) to manage the Marine Park, advise the Minister in relation to the Marine Park, conduct research and provide educational, advisory and informational services relating to the Marine Park. The Authority consists of a full-time chairman and three part-time members. The staff and chairman of the Authority constitute a statutory authority. The Government made an election commitment to review the Act to improve the performance of the Authority, its offi ce holders and its accountability frameworks. These terms of reference address the election commitment. The Government is also conducting a review of corporate governance of all statutory authorities and offi ce holders—the Uhrig review. Mr John Uhrig AC, conducted a review of eight statutory authorities and developed a set of corporate governance principles which are to be applied to all statutory authorities. The Authority is subject to the Uhrig corporate governance principles. The fi ndings of this review will also inform the implementation of the Uhrig outcomes in relation to the Authority. The Environment Protection and Biodiversity Conservation Act 1999 (the EPBC Act) is the Australian Government’s primary legislation for environmental regulation. The review provides an opportunity to examine the GBRMP Act in light of the EPBC Act with a view to modernising the GBRMP Act to ensure consistency between the two Acts. The review will be chaired by the Secretary of the Department of the Environment and Heritage, Mr David Borthwick, assisted by Ms Barbara Belcher, Department of the Prime Minister and Cabinet and Mr Jonathan Hutson, Department of Finance and Administration, reporting to the Minister for the Environment and Heritage, Senator the Hon Ian Campbell. Public submissions are invited, with a closing date of 30 September 2005.

Scope of the Review

1. The review will focus on: – the role of offi ce holders; – the functions of the Authority; – accountability frameworks; and – consultation mechanisms. 2. The review will provide advice, in light of the Uhrig principles, on: – the appropriateness of current arrangements; – the effi ciency and eff ectiveness of current consultation mechanisms; – any changes to improve the corporate governance arrangements of the Authority; – any adjustment of the function of the Authority; – improving consistency between the GBRMP Act and the EPBC Act; and – any legislative amendments required to make such changes.

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The Review secretariat

Department of the Environment and Heritage Appendices

Dr Diana Wright, First Assistant Secretary Ms Bettina Söderbaum Mr Travis Bover Ms Claire Howlett

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Appendices Public submissions to the Review

M Fellows Grace L Teitzel, Lucinda Lures R Lowden Simon Coolican, Cairns Seafood Marketing Agency W Starck R Aiello, Ecotourism consultant B Leptig M Gerhardt Dr Don Kinsey AM B Harvey Association of Marine Park Tourism Operators Mission Beach Marine Advisory Committee M&W Williams B Scott P Bowman, Bunker Fisheries Queensland Seafood Marketers’ Association J Naylor R Baker N Hanke P Todd, Aqua-Cat Charters G Matthews Wildlife Protection Association of Australia D Tarte A McIver K Kristensen R Moore J Wolstenholme A&J Holland J Beu C McFarlane T Charters Ecotourism Australia J Maddams J Crawford M&B Buckingham, Siren Seafoods K Sampson M McCormick, James Cook University W Williams J Leis F Wood P Rixon I Spadbrow K&J Harris

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Appendices P Sutton, Torres Pilots Pty Ltd P Waters Australian Institute for Marine Science Queensland Yacht Charters Community for Coastal and Cassowary Conservation R Hansen J Baker, Chief Scientifi c Adviser, QDPI&F M&R Millward J Thomas G Nairn, Great Barrier Reef Cruises Queensland Seafood Industry Association M Goldie, Explorer Ventures Futureye P&P Pike R de Vries R Erskine, Erskine Tackle Shop National Parks Australia Council Queensland Tourism Industry Council D Reid R Kelley R Pears E Dinsdale C Boland B Danastas C Stephen, Mike Ball Dive Expeditions Australian Underwater Federation Cod Hole and Ribbon Reef Operators Association B Mapstone National Parks Association of NSW J Saverin & K Guthrie, Oaksea Pty Ltd Conservation Councils - Qld, WA, South-East Region and Canberra and Tasmania P Doherty G Scott Gecko - Gold Coast and Hinterland Environment Council S Woodley (Conservation RAC) Prof H Marsh (JCU) Prof T Hughes, ARC Centre for Excellence for Coral Reef Studies T Ward Ecofi sh A Harvey, CEO, Shire of Hinchinbrook GPT Management Holdings, T Jonsson P Fischer, Taka Dive Adventures C Smalley Whitsunday Bareboat Operators Association G Unicomb J Millward, Sunlover Cruises

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33806806 GBRGBR internalsinternals final.inddfinal.indd 188188 112/9/062/9/06 10:41:0810:41:08 AMAM The Fishing Party R Babcock A Hay G Hunt, Synergy Reef Sailing Queensland Conservation Councils P Mather AO (Qld Museum) Associate Professor B Willis (James Cook University) G Hunt, Voyages Hotels and Resorts Appendices A Cousland B McNeven B Kennedy, SOS Burdekin The Nature Conservancy Tourism Tropical North Queensland Nature Conservation Council of NSW Associate Professor G Russ (James Cook University) Australian Marine Conservation Society M Burns O Hoegh-Guldberg, Centre for Marine Science, University of Queensland St Helens Bush and Beach Association P Holmes, Javelin Boats The Whitsunday Crew Eastern Pelagic Fishing Group R Anderson, M&G Stevenson, QSIA Branch 14 Australian Marine Sciences Association Association of Marie Park Tourism Operators - Southern Group N Williams M Crimp, Indian Pacifi c Pearls R Lacco, Opal Marine W Robinson, Schulz Fisheries The Wilderness Society Magnetic Island Community Development Association M Mansfi eld V Lukoschek M Creta J Foley, Nairana Pty Ltd J Davidson RW Bennett A Griggs N Green D Lewis Whitsunday Charter Boat Industry Association P Carden B Barnett, Tyto Consulting B Cunningham D Glasson R&L Gibson Wildlife Preservation Society of Qld Australian Maritime Safety Authority M Gardner

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Appendices S Waring, Tusa Dive R Reichelt Queensland Government Tourism and Transport Australia Ocean Watch Queensland Aquaculture Industries Federation Wildlife Preservation Society of Australia Bluefi n Seafoods Pty Ltd Captain Cook Cruises Diversion Dive Travel Hassan Family Trust Johnstone Ecological Society Shipping Australia Ltd Professor B Moulden (Vice-Chancellor, James Cook University) B Gamlim R Elmer Townsville Enterprise N Dawson S Hanson, ABIT Pty Ltd R Kenchington T Fontes Sunfi sh Queensland H Burgess P Boundy CA Mitchell A Welk Mackay Local Marine Advisory Committee J Thorogood Australian Conservation Foundation Far North Queensland Natural Resources Management The Hon Warren Entsch MP RS Earle Burnett Marine Advisory Committee Australian Government Department of Industry, Tourism and Resources

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Consultation meetings held as part of the Review

Reef Advisory Committees Appendices • Mr Peter Frawley, Chair, Tourism and Recreation Reef Advisory Committee • Ms Diane Tarte, Chair, Fisheries Reef Advisory Committee • Mr Noel Dawson, Chair, Water Quality Reef Advisory Committee • Mr Simon Woodley, Conservation Reef Advisory Committee

Local Marine Advisory Committees (LMACs)

• Mr Peter Wright, Acting Chair and Mr Paul Freeman, Secretary, Douglas LMAC • Mr Bob Rossi, Chair and Mr Tim Anderson, Deputy Chair, Cairns LMAC • Mr Bill Shannon, Chair and Mr Dave Nissen, Member, Mission Beach LMAC • Mr Bill Whiteman, Chair and Mr David Perkins, Member, Hinchinbrook LMAC • Mr Steve McGuire, Chair and Ms Lisa Gershwin, Member, Townsville LMAC • Mr Tony Fontes, Chair, Whitsunday LMAC • Mr Les Todd, Member and Mr Joe Patterson, Member, Mackay LMAC • Mr Graham Scott, Chair, Capricorn Coast LMAC • Mr Warwick Sheldon, Chair and Ms Anna Hitchcock, Member, Gladstone LMAC • Mr Ray Duff y, Chair and Mr Ray Heale, Member, Burnett LMAC • Mr Ian McCollum, Chair, Cape York Marine Advisory Group

Commercial fi shing

• Mr John Olsen, Ms Karin Schiller, Mr Neil Green, Mr Martin Bowerman, Mr Tor Hundloe, Queensland Seafood Industry Association • Mr Lyle Squire, Mr Rob Lowden, Mr Shaun Hanson, Mr Gary Wicks, Ms Anne English, Mr Denis Ballam, Ecofi sh

Seafood processing and marketing

• Mr Jim Fogarty, Mr Peter Packman, Mr Sid McKeown, Mr Ted Whittingham, Mr Graham Carraciolo and Mr Martin Perkins, Queensland Seafood Marketers’ Association

Recreational fi shing

• Mr Bill Turner and Mr David Bateman, Sunfi sh Queensland • Mr Brian Pickup, Ms Cheryl Picker, Mr Arthur Dobe and Mr Brad Baker, Sunfi sh North Queensland • Mr Kevin Collins, Mr Wayne Bayne and Mr Alex Witten, The Fishing Party Queensland

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• Mr Daniel Gschwind, Queensland Tourism Industry Council • Mr Col McKenzie and Mr David Hutchen, Association of Marine Park Tourism Operators Appendices • Mr Peter Boundy, Dive Queensland

Queensland Government

• Dr Leo Keliher, Ms Liz Young and Ms Andrea Leverington, Queensland Department of Premier & Cabinet

Conservation organisations

• Mr Ray Nias and Mr Richard Leck, World Wildlife Fund • Ms Kate Davey, Australian Marine Conservation Society

Research and academic organisations

• Dr Russell Reichelt, Cooperative Research Centre for the Great Barrier Reef World Heritage Area • Professor Helene Marsh, James Cook University • Dr Ian Poiner, Australian Institute of Marine Science • Professor Michael Kingsford, Australian Coral Reef Society • Professor Richard Kenchington, Centre for Maritime Policy, University of Wollongong

Great Barrier Reef Marine Park Authority

• Hon. Virginia Chadwick, Mr Terry Wall, Dr Evelyn Scott and Ms Fay Barker, Great Barrier Reef Marine Park Authority members • Hon. Virginia Chadwick, Mr Andrew Skeat and Mr John Tanzer, Great Barrier Reef Marine Park Authority Executive Management Team

Shipping and ports

• Mr Barry Holden and Mr Larry Hore, Townsville Port Authority • Mr Clive Davidson, Chief Executive Offi cer, Australian Maritime Safety Authority

Federal Parliamentarians

• The Hon Warren Entsch MP, Member for Leichhardt • Senator the Hon Ron Boswell • The Hon De-Anne Kelly MP, Member for Dawson • Mr Peter Lindsay MP, Member for Herbert • Senator Barnaby Joyce • Senator the Hon Ian Macdonald • Mr Paul Neville MP, Member for Hinkler • Senator Nigel Scullion

Other

• Dr Wendy Craik, Chief Executive Offi cer, Murray–Darling Basin Commission • Mr Geoff Gorrie, former Deputy Secretary, Department of Agriculture, Fisheries and Forestry

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The Emerald Agreement of 1979

The Great Barrier Reef Appendices The basic idea is to secure agreement on the main elements of a negotiation on the basis that the Great Barrier Reef Marine Park Act [1975] the Region remain unchanged.

The negotiating scenario

1. Establishment of a Queensland-Commonwealth Council on the Great Barrier Reef Region It is recommended that a Council of four Ministers (two from each side) representing tourism, marine parks, science and environment, be established under an exchange of letters between the Premier and the Prime Minister. The Council would include in its functions the processing of recommendations to Governments by the Barrier Reef Authority. The Council would be convened by the Commonwealth at the request of either party. Note: Ministers responsible for mining would not be members of the Council. 2. The Capricornia Section It is envisaged that the Capricornia section will be the fi rst area to be considered for declaration as a marine park, and the Council will take early steps to address this matter. 3. Management of the Marine Park within the Region The Act provides for the Authority to make arrangements with the State for the management of any declared marine park. It is recommended that subject to the Authority Queensland be assigned the day-to-day management role and that the necessary preparatory steps to be taken for arrangements to be put in place, on a basis to be agreed by the Ministerial Council. 4. Territorial Seas in the Region The legal arrangements for the implementation of the Premiers’ Conference decision on Seas and Submerged Lands be subject to the following: a) the Great Barrier Reef Marine Park Act [1975] and the boundaries of the Great Barrier Reef Region to remain unchanged; b) the Prime Minister’s statement of 4 June 1979 concerning the Great Barrier Reef; c) the day-to-day management to be undertaken by offi cers of the Queensland National Parks and Wildlife Service, who, in discharging these responsibilities, will be subject to the Great Barrier Reef Marine Park Authority; d) relevant State legislation to be brought into line with the Great Barrier Reef Marine Park Act [1975]. 5. Subject to the above, the arrangements with Queensland in relation to the territorial sea which will fl ow from the agreements of the June 1978 Premiers’ Conference will be on the same basis as the arrangements to be entered into in respect of other States. 6. Scientifi c Research The Ministerial Council would be asked to endorse and monitor the progress of the proposed programs of scientifi c research in the Barrier Reef region and to ensure that it be established on a timetable and framework acceptable to both Governments. 7. Joint Press Statement As a fi rst step in the implementation of these co-operative arrangements it is proposed that a joint press statement should be issued along the lines of the draft attached.

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Appendices Legislation, Regulations and conventions relevant to management of the Great Barrier Reef

Commonwealth legislation and Regulations Great Barrier Reef Marine Park Act 1975 Great Barrier Reef Marine Park (Environmental Management Charge-Excise) Act 1993 Great Barrier Reef Marine Park (Environmental Management Charge-General) Act 1993 Great Barrier Reef Marine Park Regulations 1983 Great Barrier Reef Region (Prohibition of Mining) Regulations 1999 Great Barrier Reef Marine Park (Aquaculture) Regulations 2000 Environment Protection and Biodiversity Conservation Act 1999 Environment Protection (Sea Dumping) Act 1981 Historic Shipwrecks Act 1976 Protection of the Sea (Prevention of Pollution from Ships) Act 1983 Sea Installations Act 1987 Queensland legislation Marine Parks Act 1982 Marine Parks Act 2004 Environmental Protection Act 1994 Fisheries Act 1994 Coastal Protection and Management Act 1995 Integrated Planning Act 1997 Native Title (Queensland) Act 1993 Nature Conservation Act 1992 Transport Operations (Marine Pollution) Act 1995 Transport Operations (Marine Safety) Act 1994 International conventions Convention Concerning the Protection of the World Cultural and Natural Heritage, 1972 Convention on Biological Diversity, 1992 Convention on International Trade in Endangered Species of Wild Fauna and Flora, 1973 Convention on the Conservation of Migratory Species of Wild Animals, 1979 Convention on Wetlands of International Importance Especially as Waterfowl Habitats, 1971 Convention for the Prevention of Pollution from Ships, 1973 United Nations Convention on the Law of the Sea, 1982 United Nations Framework Convention on Climate Change, 1992

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Government agencies of relevance to management of the Marine Park

As at August 2006 Appendices

Australian Government agencies • Department of Families, Community Services and Indigenous Aff airs • Australian Customs Service • Australian Fisheries Management Authority • Australian Institute of Marine Science • Australian Maritime Safety Authority • Australian Quarantine and Inspection Service • Commonwealth Scientifi c and Industrial Research Organisation • Department of Defence • Department of Industry, Tourism and Resources • Department of the Environment and Heritage

Queensland Government agencies • Department of Local Government, Planning, Sport and Recreation • Department of Natural Resources, Mines and Water • Department of State Development, Trade and Innovation • Education Queensland • Queensland Department of Primary Industries and Fisheries • Environmental Protection Agency/Queensland Parks and Wildlife Service • Queensland Transport • Tourism Queensland

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Appendices Biophysical Operational Principles for the Representative Areas Programme

As recommended by the Scientifi c Steering Committee for the Representative Areas Programme

The Scientifi c Steering Committee

The independent Scientifi c Steering Committee (SSC) to the Representative Areas Programme (RAP) provides advice on scientifi c issues, programming and priorities to assist the Great Barrier Reef Marine Park Authority (GBRMPA) to achieve the best possible outcomes. The membership of RAP’s SSC was decided by the GBRMPA after consultation with over 70 of Australia’s top scientists with expertise in the GBR region.

Background and context for these recommendations

The SSC believes that the existing network of Green Zones (no-take areas)23 in the Great Barrier Reef Marine Park (GBRMP) is insuffi cient to maintain the biological diversity and ecological integrity of the Great Barrier Reef (GBR) into the future. The reasons are that: • less than 5 per cent of the Marine Park is currently in no-take areas; • the existing areas are largely confi ned to coral reefs or the remote far north of the Marine Park; and • the coverage of no-take areas in many of the 70 bioregions in the Great Barrier Reef World Heritage Area (GBRWHA) is minimal or non-existent. The GBRMPA shares this concern and is rezoning the entire Marine Park through RAP. This rezoning will result in more no-take areas that will help: • maintain biological diversity at the levels of ecosystem, habitat, species, population and genes; • allow species to evolve and function undisturbed; • provide an ecological safety margin against human-induced disasters; • provide a solid ecological base from which threatened species or habitats can recover or repair themselves; and • maintain ecological processes and systems. As part of the RAP, new no-take areas or Green Zones will be created and existing Green Zones may be expanded to achieve greater protection of biodiversity. The existing range of multiple-use zones will remain (ranging from ‘General Use Zones’ where most reasonable activities are allowed, through the new ‘National Park Zones’ [also known as Green Zones or ‘no-take’ areas], to small areas of ‘Preservation Zone’ which are ‘no-go’ areas).

23 Green Zones (no-take areas) within the GBR Marine Park are equivalent to the existing ‘National Park Zones’ (Cairns & Far North Sections) and ‘Marine National Park B Zones’ (Central & Mackay-Capricorn Sections) in which activities such as boating, diving and snorkelling are permitted, but the taking of plants, animals and marine products is prohibited.

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33806806 GBRGBR internalsinternals final.inddfinal.indd 196196 112/9/062/9/06 10:41:0910:41:09 AMAM The Representative Areas Programme has several phases: • classifi cation – map the marine diversity in the Great Barrier Reef World Heritage Area into bioregions; • review – determine the extent to which the existing zoning protects the biodiversity shown by the bioregions; • identifi cation – identify networks of candidate areas which will achieve the biological objectives of RAP; and

• selection – select from amongst the options of candidate areas to maximise benefi cial and minimise Appendices detrimental impacts whilst considering social, economic, cultural and management implications (Day et al, in press).

Origin and justifi cation of the biophysical operational principles

The following biophysical operational principles are recommended by the SSC to guide the establishment of a new network of no-take areas that could achieve the objectives of RAP. These principles will guide reserve design processes in RAP. The SSC recognises that other processes in RAP will address the cultural, social and economic dimensions of the programme and that these may infl uence the degree to which the GBRMPA is able to achieve, in full, its recommendations. An independent Social, Economic and Cultural Steering Committee has developed operational principles for assessing social, economic, cultural impacts and management feasibility that complement the biophysical operational principles. The biophysical operational principles outlined below were established by the SSC by taking into account: • the level of uncertainty about the biodiversity of the GBR World Heritage Area; • the fact there is already a basic level of protection across the GBR Marine Park; and • other eff orts to ensure protection of the GBR Marine Park by improvements in, for example, water quality and sustainable fi shing.

Amount of protection required

The extent of protection required to ensure the ongoing conservation and protection of marine biodiversity is a subject of debate in the scientifi c literature. Amounts recommended in the literature generally fall in the range of 20 – 40% of the sea in no-take areas. The scientifi c arguments for setting aside substantial amounts of the marine environment as no-take areas include: • Risk minimisation – protecting a large proportion and replicate examples of a marine area – in total 20% or more – will reduce risks of over-exploitation of harvested resources and consequent eff ects on the ecosystem, whilst leaving reasonable opportunity for existing activities to continue in the remaining areas; • Connectivity – the life cycles of most marine organisms mean that off spring from one area often replenish populations in other areas (referred to as ‘connectivity’). As more areas are closed to extractive activities, the benefi ts to the whole system through such connectivity (both among reserves and between reserves and non-reserves) is expected to increase, thereby off ering greater security for conservation; • Resilience against human and natural catastrophes – for any one disturbance, much of the network of protected areas should remain intact so that aff ected areas can recover more quickly and completely through replenishment from other non-impacted no-take areas; • Harvested species – the protection of 20 – 40% of any fi shed grounds in no-take areas off ers some fi sheries the opportunity for better management, and permits no-take areas to maintain more natural population levels of harvested species and, consequently, more natural communities as a whole; and

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33806806 GBRGBR internalsinternals final.inddfinal.indd 197197 112/9/062/9/06 10:41:0910:41:09 AMAM • Maintenance of ecological services and goods – in no-take areas, ecosystems can function in a more natural manner which contributes to maintenance of ecological processes. This leads to more sustainable delivery of ecological goods and services to both the environment and humans.

Appendices The SSC is aware of the literature on theoretical and empirical evidence for levels of protection. Their considerations have been supported by independent advice from other experts in coral reef and non-reef ecosystems, and experts with technical knowledge about the design of protected area networks. The SSC recognises: • national and international expectations associated with managing the world’s largest coral reef ecosystem and the world’s largest World Heritage Area in a developed country; and • international experience and opinion advocating greater protection of the world’s oceans. The percentages presented in these recommendations have been developed using best available knowledge of the GBR World Heritage Area system and general principles of reserve design. Despite this, detailed knowledge about the distribution of many plants and animals in the area is limited and the SSC recognises that many species are yet to be discovered. The SSC considers that species-specifi c information is insuffi cient to determine exact amounts of protection required for the whole ecosystem and that all knowledge gathered to date indicates that the protection of biodiversity requires much more than protection of particular species and a much greater extent of protection than currently exists in the GBRMP. The percentage fi gures presented in the biophysical operational principles were developed using all available information and local knowledge/experience of the GBR World Heritage Area and recognition that requirements vary with areas and habitats. The fi nal percentage protection recommended per bioregion is the outcome of implementing all the principles below including principles 5 and 6 (which refer to each bioregion) and principles referring to specifi c levels of protection for diff erent habitats, communities and special and unique areas. The SSC also was mindful of the need for a precautionary approach to the protection of the unique biophysical properties of the GBRMP when recommending minimum amounts for no-take areas.

The biophysical operational principles should be treated as a package to underpin the choice of what number, size and location of no-take areas to implement. If these principles are implemented in full, the SSC expects that around 25-30% of the GBRMP will be protected in Green Zones or no-take areas – in some locations more and others less so.24 These biophysical operational principles refer to minimum amounts of protection. The SSC considers that to achieve the objectives of RAP the GBRMPA should protect at least these amounts in each bioregion and each habitat – none of these recommendations are for ‘ideal’ or ‘desired’ amounts. Ideal or desired amounts required for full protection are likely to be greater than indicated by the biophysical operational principles. The SSC realizes that there are many diff erent spatial confi gurations of no-take areas that would fulfi l these biophysical operational principles and that the fi nal location of no-take areas will be decided in consultation with Traditional Owners, users and other stakeholders. The SSC considers that the biophysical operational principles are best estimates of the requirements to provide minimum protection through declaration of no-take areas (Green Zones), available literature and expert knowledge, and are based upon current knowledge of the system but may require review as new information becomes available.

24 More new no-take zones will be located over non-reef areas than reef areas because 21 per cent of reef area is already in no-take zones.

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Principle Explanation

1. Have no-take areas the minimum size of While no-take areas may be of various shapes and sizes, 20km which is 20km along the smallest should be the minimum distance across any no-take area in order dimension (except for coastal bioregions, to ensure that the size of each area is adequate to provide for the refer to Principle 6) maintenance of populations of plants and animals within Green Zones and to insure against edge eff ects resulting from use of the Appendices surrounding areas.

2. Have larger (versus smaller) no-take areas For the same amount of area to be protected, protect fewer, larger areas rather than more smaller areas, particularly to minimise ‘edge eff ects’ resulting from use of the surrounding areas. This principle must be implemented in conjunction with principle 3.

3. Have suffi cient no-take areas to insure ‘Suffi cient’ refers to the amount and confi guration of no-take against negative impacts on some part areas and may be diff erent for each bioregion depending on of a bioregion its characteristics. For most bioregions, 3-4 no-take areas are recommended to spread the risk against negative human impacts aff ecting all Green Zones within a bioregion. For some very small bioregions fewer areas are recommended, whilst for some very large or long bioregions, more no-take areas are recommended.

4. Where a reef is incorporated into no-take Reefs are relatively integral biological units with a high level of zones, the whole reef should be included connectivity among habitats within them. Accordingly, reefs should not be subject to ‘split zoning’ so that parts of a reef are ‘no-take’ and other parts are not.

5. Represent a minimum amount of each In each reef bioregion, protect at least 3 reefs with at least 20% reef bioregion in no-take areas of reef area and reef perimeter25 included in no-take areas. The number and distribution of no-take areas is described in principle 3.

6. Represent a minimum amount of each In each non-reef bioregion, protect at least 20% of area. Two non-reef bioregion in no-take areas coastal bioregions,26 which contain fi ner scale patterns of diversity due to bays, adjacent terrestrial habitat and rivers require special provisions. The number and distribution of no-take areas is described in principle 3.

7. Represent cross-shelf and latitudinal Many processes create latitudinal and longitudinal (cross-shelf) diversity in the network of no-take areas diff erences in habitats and communities within the GBR World Heritage Area. This diversity is refl ected partly in the distribution of the bioregions, but care should be taken to choose no-take areas that include diff erences in community types and habitats that cover wide latitudinal or cross-shelf ranges (see principle 8).

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25 These bioregions are excepted: • Capricorn-Bunker Mid-Shelf Reefs (RCB2) – include one of the inner 2 and one of the outer 2 reefs. This exception exists because RCB2 has only 4 reefs; • Deltaic Reefs (RA1) – minimum 25% and minimum 15 reefs in one continuous area. This exception exists because the bioregion is too small for multiple no-take areas; • High Continental Island Reefs (RHC) – 20% of reef perimeter only. This exception exists because reef perimeter makes more biological sense for fringing reefs; and • Central Open Lagoon Reefs (RF2) – 3 reefs. There are very few reefs in this bioregion. 26 For coastal bioregions: • Coastal Strip-Sand (NA1) – protect at least six no-take areas, each at least 10 km in length, spaced approximately every 70-100 km apart. (This bioregion is approx. 800 km long); and • High Nutrient Coastal Strip (NA3) – at least eight no-take areas, each at least 10 km in length, spaced approximately every 70-100 km apart. (This bioregion is approximately 1400 km long).

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Principle Explanation

8. Represent a minimum amount of each This principle is to ensure that all known communities and habitats Appendices community type and physical environment that exist within bioregions are included in the network of no-take type in the overall network taking into areas. Communities and habitats were identifi ed for protection in account principle 7 27 no-take areas based upon the reliability and comprehensiveness of available data. The requirements listed in Footnote 5 help implement this principle, which is intended to ensure that particularly important habitats are adequately represented in the network of no-take areas.

9. Maximise use of environmental information The network of areas should accommodate what is known about to determine the confi guration of no-take migration patterns, currents and connectivity among habitats. The areas to form viable networks spatial confi gurations required to accommodate these processes are not well known and expert review of candidate networks of areas will be required to implement this principle.

10. Include biophysically special/unique places These places might not otherwise be included in the network but will help ensure the network is comprehensive and adequate to protect biodiversity and the known special or unique areas in the GBRMP. Aim to capture as many biophysically special or unique places as possible.

11. Include consideration of sea and adjacent Past and present uses may have infl uenced the integrity of the land uses in determining no-take areas biological communities and the GBRMPA should consider these eff ects, where known, when choosing the location of no-take areas. For example, existing no-take areas and areas adjacent to terrestrial National Parks are likely to have greater biological integrity than areas that have been used heavily for resource exploitation.

27 Data and objectives to implement principle 8: • Halimeda beds – ensure no-take areas represent 10% of known Halimeda beds; • shallow water seagrass – ensure no-take areas represent 10% of shallow water seagrass habitat; • deepwater seagrass – ensure no-take areas represent 10% of known deepwater seagrass habitat; • algae – ensure no-take areas represent 10% of known algal habitat; • epibenthos – ensure no-take areas represent diff erent faunal classes (5% each of echinodermata, sponges, bryozoans, solitary corals, soft corals, foraminifera, brachyura); • dugong – ensure no-take areas represent identifi ed dugong habitat areas summing to about 50% of all high priority dugong habitat; • cays – where cays exist within a bioregion, try to include at least two examples of them in potential no-take areas; • reefs size - capture 5% of reef area in each of fi ve reef-size classes; • inter-reef channels - capture at least one inter-reef channel in bioregions where they exist; • exposure - ensure the entire network captures 5% of reef and non-reef area in each of fi ve wave exposure classes; • islands – where islands exist within a bioregion try to include one example of them in no-take areas; • oceanographic diversity in water quality – ensure representation of reefs within the ‘natural’ diversity of water quality (5% of reef and non-reef area in each of nine oceanographic ‘bioregions’; 5% of reef and non-reef area in each of four fl ood frequency classes); • adjacent coastal and estuarine habitats (including islands) – locate no-take areas adjacent to mangroves, wetlands and protected areas rather than adjacent to suburbs; and • major turtle sites – ensure no-take areas include known major turtle nesting and foraging sites (100% of about 30 sites of the 115 identifi ed – these include both nesting sites and foraging sites).

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Selected scientifi c studies on the establishment of ‘no-take’ areas in Marine Protected Areas available

at the time of the Representative Areas Programme Appendices National Research Council 2000, Marine Protected Areas: Tools for Sustaining Ocean Ecosystems, Committee on Evaluation, Design and Monitoring of Marine Reserves and Protected Areas in the United States, Oceans Studies Board, National Research Council. 272. Available at http://newton.nap.edu/books/0309072867/ html/112.html Ballantine W.J. 1997, ‘Design principles for systems of “no-take” marine reserves’, Workshop on the Design and Monitoring of Marine Reserves, February 18–20, Fisheries Centre, University of British Columbia, Canada. DeMartini E.E. 1993, ‘Modelling the potential of fi shery reserves for managing Pacifi c coral reef fi shes’, Fishery Bulletin 91: 414–427. Foran T. and R.M. Fujita 1999, Modelling the Biological Impact of a No-take Reserve Policy on Pacifi c Continental Slope Rockfi sh, Environmental Defense Fund, Oakland, California. Goodyear C.P. 1993, ‘Spawning stock biomass per recruit in fi sheries management: Foundation and current use’, Canadian Special Publications in Fisheries and Aquatic Science 120: 67–81. Guénette S., Pitcher T.J. and Walters C.J., 2000, ‘The potential of marine reserves for the management of northern cod in Newfoundland’, Bulletin of Marine Science 66(3): 831–852. Guénette S. and Pitcher T.J., 1999, ‘An age-structured model showing the benefi ts of marine reserves in controlling overexploitation’, Fisheries Research 39: 295–303. Lauck T.C., Clark C.W., Mangel M. and Munro G.R. 1998, ‘Implementing the precautionary principle in fi sheries management through marine reserves’, Ecological Applications 8(1): S72–S78. Mace P.M. 1994, ‘Relationships between common biological reference points used as thresholds and targets of fi sheries management strategies’, Canadian Journal of Fisheries and Aquatic Science 51: 110–122. Mace P.M. and Sissenwine M.P. 1993, ‘How much spawning per recruit is enough?’, Canadian Special Publication of Fisheries and Aquatic Sciences 120: 101–118. Man A., Law R. and Polunin N.V.C. 1995, ‘Role of marine reserves in recruitment to reef fi sheries: A metapopulation model’, Biological Conservation 71: 197–204. Mangel M. 2000, ‘Trade-off s between fi sh habitat and fi shing mortality and the role of reserves’,Bulletin of Marine Science 66(3): 663–674. Soh S.K., Gunderson D.R. and Ito D.H. 1998, ‘Closed areas to manage rockfi shes in the Gulf of Alaska’ 118–124 in M.M. Yoklavich (ed.), Marine Harvest Refugia for West Coast Rockfi sh: A Workshop, NOAA Technical Memorandum NOAA-TM-NMFS-SWFSC-255, U.S. Department of Commerce, Pacifi c Grove, California. Sumaila U.R. 1998, ‘Protected marine reserves as fi sheries management tools: A bioeconomic analysis’, Fantoftvegen 38: N-5036. Roberts C.M. and Hawkins J.P. 2000, Fully Protected Marine Reserves: A Guide, WWF Endangered Seas Campaign, 1250 24th Street NW Washington DC 20037, USA. Rohgarten J. 1998, ‘How to manage fi sheries’, Ecological Applications, 8: S160–164.

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33806806 GBRGBR internalsinternals final.inddfinal.indd 201201 112/9/062/9/06 10:41:1010:41:10 AMAM Pezzey J.C.V., Roberts C.M. and Urdal B.T. 2000, ‘A simple bioeconomic model of a marine reserve’, Ecological Economics 33: 77–91. Nowis J. S. and Roberts C. M 1997, ‘You can have your fi sh and eat it too: theoretical approaches to marine

Appendices reserve design’, Proceedings of the 8th International Coral Reef Symposium, Panama 2: 1907–1910. Nowis, J. S. and Roberts C. M. 1999, ‘Fisheries benefi ts and optimal design of marine reserves’, Fishery Bulletin 97: 604–616. Holland D.S,. Brazee & R.J 1996, ‘Marine reserves for fi sheries management’,Marine Resource Economics 11: 157–171. Polacheck T. 1990, ‘Year around closed areas as a management tool’, Natural Resource Modelling 4: 327–354. Bostford L.W., Morgan L.E., Lockwood D.R. and Wilen J.E. 1999, Marine Reserves and Management of the North Californian Red Sea Urchin Fishery, California Co-operative Oceanic Fisheries Investigation Reports 40 :87–93. Roberts, C.M., Branch, G., Bustamente, R., Castillo, J.C., Dugan, J., Halpern, B., Laferty, K., Leslie, H., McArdle, D., Ruckleshaus, M. and Warner, R. ‘Application of ecological criteria in selecting marine reserves and developing reserve networks’, Ecological Applications 13(1) Supplement 2003 S215–S228. Turpie, J.K., Beckley, L.E. and Katua, S.M. 2000, ‘Biogeography and the selection of priority areas for conservation of South African coastal fi shes’,Biological Conservation 92: 59–72. Bustamante, R., Martinez, H.P., Rivera, F., Bensted-Smith, R. and Vinueza, L. 1999, A Proposal for the Initial Zoning of the Galapagos Marine Reserve, Charles Darwin Research Station Technical Report, October 1999. Trexler, J. and Travis, J. In press. ‘Can marine protected areas conserve stock attributes’, Bulletin of Marine Science.

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Economic, social, cultural and management feasibility operational principles for the Representative Areas

Programme Appendices As part of the zoning review to implement the Representative Areas Programme, two independent steering committees were formed to provide expert advice to the GBRMPA about the: • biological and physical aspects of the Great Barrier Reef Region; and • social, economic, cultural and management feasibility aspects of human use and values of the Marine Park. The selection of new no-take areas will be guided by the operational principles developed by both these committees. These principles will help protect biodiversity whilst maximising benefi cial and minimising detrimental impacts to local communities and stakeholders. A summary of the social, economic, cultural and management feasibility operational principles developed by the Social, Economic and Cultural Steering Committee is given below. These will apply, as far as possible, to the Representative Areas Programme. Another technical information sheet is available detailing the biophysical operational principles.

Operational principles

Principle Explanation

1. Maximise complementarity of no-take This is achieved by placing Green Zones (or no-take areas) in areas with human values, activities and locations that: opportunities • have been identifi ed through a consultative process that is participatory, balanced, open and transparent; • Traditional Owners have identifi ed as important and in need of high levels of protection; • minimise confl ict with Indigenous people’s aspirations for their sea country; • protect areas that the community identifi es as special or unique, e.g. places of biological, cultural, aesthetic, historic, physical, social or scientifi c value; • minimise confl ict with non-commercial extractive users such as recreational fi shers; • minimise confl ict with commercial extractive users; and • minimise confl ict with all non-extractive users.

2. Ensure that fi nal selection of no-take areas This will include recognition of the following: recognises social costs and benefi ts • relative social costs and benefi ts, including community resilience; • spatial equity of opportunity within and between communities, including clan estates; • planned and approved future activities; and • consider requirements for monitoring the eff ectiveness of the zoning plans.

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Principle Explanation

Appendices 3. Maximise placement of no-take areas in These arrangements include the following: locations which complement and include • existing or proposed zoning plans, management plans or other present and future management and tenure related management strategies for marine areas by federal, arrangements state or local government authorities; • existing or proposed tenure and management strategies for coastal areas (mainland and islands) in the region; and • Native Title claim areas and issues.

4. Maximise public understanding and This is achieved by: acceptance of no-take areas, and facilitate • having Green Zones that are simple shapes; enforcement of no-take areas • having Green Zones with boundaries that are easily identifi ed; and • having fewer and larger Green Zones rather than more and smaller Green Zones.

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