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The Emerging Weed Challenge of Managing Native Plant Species: What Are We Doing in New South Wales?

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The Emerging Weed Challenge of Managing Native Plant Species: What Are We Doing in New South Wales? Nineteenth Australasian Weeds Conference The emerging weed challenge of managing native plant species: what are we doing in New South Wales? Stephen B. Johnson New South Wales Department of Primary Industries, Locked Bag 6006, Orange, NSW 2800, Australia ([email protected]) Summary Plant species that are native to Australia among many broad strategies and management options can be significant weeds of primary production and the available to achieve the aims of the Invasive Species environment, both within and outside their endemic Plan. New South Wales Department of Primary Indus- ranges. Of the 6049 taxa native to New South Wales, tries is the lead agency for weed management in the over 165 (2.7%) are considered to be weedy within state, and in partnership with Local Government enacts their indigenous range. With only one exception, none the Noxious Weeds Act 1993 (NWA). Having said this, are managed as noxious under the New South Wales there are a number of agencies, including New South Noxious Weeds Act 1993. Wales Department of Primary Industries (DPI), who Two groups of native species are managed as have responsibility for managing invasive plant spe- noxious weeds. With one exception, the first group cies impacting primary industries, the environment, includes a range of 14 tree, shrub, vine and epiphytic the community and the heritage/culture of all people, species found in northern and eastern rainforests and often using distinct legislation to help achieve this, high rainfall areas. These species are generally of and other objectives. concern outside their endemic range, for example The most recent review of the NWA identi- sweet pittosporum (Pittosporum undulatum Vent.), fied a number of conflicting interactions with other some lilly-pilly species (both Acmena and Syzygium New South Wales legislation (and attendant policies species), bower vine (Pandorea jasminoides (Lindl.) and procedures, Johnson and Lisle 2011). In many Schum.) and staghorn fern (Platycerium superbum cases, legislation enacted since 1993 (when the NWA de Jonch. & Hennipman). The exception is coastal was enacted) has not thoroughly considered the im- teatree (Leptospermum laevigatum (Gaertn.) F.Muell.), pact of subsequent legislative requirements on the a species that is invasive in coastal dune areas in New operations of the NWA. This includes parts of the South Wales. The second group are those found (and Threatened Species Conservation Act 1995 (not dis- declared) within their endemic range. Galvanised cussed further in this paper but see Johnson 2014), burr (Sclerolaena birchii (F.Muell.) Domin), an early the Native Vegetation Act (NVA) 2003 and the Native colonising shrub of rangeland throughout western New Vegetation Regulation (NVR) 2013: acronyms for South Wales, is the only current example. legislation are generally used throughout this paper for This paper discusses the use of legislation to en- brevity. able the management of native plant species, particu- This paper discusses the use of legislation to en- larly with the Noxious Weeds Act 1993 and the Native able the management of native plant species, particu- Vegetation Act 2003 (and associated legislation). The larly with the NWA and NVA. There are a number of problems encountered are also examined. Importantly, problems due to conflicting legislative requirements. options for the management of native species in New Options are suggested to address these problems South Wales are suggested so as to address some of the such that the management of native vegetation can conflicting issues identified. The principles, practices be improved. The principles, practices and examples and examples examined in this paper provide essential examined in this paper provide essential guidance to guidance to the emerging challenges of the manage- the emerging challenges of managing native plant ment of native plant species across many jurisdictions species across Australia. in Australia. Keywords Legislation, native vegetation, SOME DEFINITIONS FIRST naturalised, invasive, indigenous, endemic, noxious. Plant Any organism from the Kingdom Plantae (after Raven et al. 1987). INTRODUCTION Weed A plant growing in the wrong place at the The New South Wales Invasive Species Plan provides wrong time. an overarching framework for the management of all Naturalised plant Plants which ‘reproduce invasive species, including weeds, in the state (NSW consistently…and sustain populations over many Government 2008). Legislation is one of the tools, lifecycles without direct intervention by humans 227 Nineteenth Australasian Weeds Conference (or in spite of human intervention)’ (Richardson native Australian plants that are indigenous but have et al. 2000). naturalised outside their endemic ranges in New South Invasive plant Naturalised plants ‘that pro- Wales (n = 62) are added, naturalised plant species duce reproductive offspring, often in very large growing outside their native range represent 22.4% numbers, at considerable distances from parent of the States flora. plants…and thus have the potential to spread over Not all naturalised plant species growing out of a considerable area’ (Richardson et al. 2000). their native range are invasive. Conversely, native Australian native plant Any taxa belonging to Australian plant species growing within their endemic the Kingdom Plantae including: trees (saplings, ranges can be problematic. An analysis of weed spe- shrubs, and scrub); understory plants; groundcover cies in irrigated and dryland cotton, irrigated rice, plants (any type of herbaceous vegetation); plants dryland cereal and oilseed cropping, and rangeland occurring in a wetland and any mangrove and sea grazing systems revealed at least 137 distinct Austral- grass species; that have originated in Australia ian native plant taxa that were problematic (Johnson without human involvement or that have arrived 2014). A further 28 taxa are added when what were here without the intentional or unintentional in- ‘Invasive Native Scrub’ taxa listed under the NVA are tervention of humans from an area in which they considered: that is 2.7% of plants indigenous to New are native (adapted from the NVA and Pysek et al. South Wales are recognised as weeds within their 2004). endemic ranges. Indigenous plant species An Australian native plant within its native range. LEGISLATION FOR MANAGING NATIVE Endemic plant species Belonging exclusively PLANT SPECIES to a particular locality or region, e.g. Cootamundra The Noxious Weeds Act 1993 The main objective wattle (Acacia baileyana F.Muell.) is endemic to of the NWA is to ‘reduce the negative impact of weeds the Temora and Cootamundra area but is widely on the economy, community and environment’ of New cultivated (and naturalised) across New South South Wales. This and similar jurisdictional legislation Wales (RBG&DT 2014). seeks to reduce the impact of externalities or external Noxious weed Any freshwater or terrestrial costs. An externality occurs when the actions, or inac- ‘plant declared by an order under section 7’ of tions, of individuals impose unintended impacts on the NWA: mangroves, seagrasses and any other others (Blackmore 2008), such as when weeds spread type of marine vegetation to which section 205 from one property to another property at no fault of, of the Fisheries Management Act 1994 applies and/or in spite of the second property managers’ ef- are covered under that legislation. forts. Weed declarations best help minimise weed ‘Feral species’ (previously Feral native spe- spread (and externalities) when done during the early cies) Section 37 of the NVR defines a ‘feral stages on invasion. In contrast, native plant species species’ (previously Feral Native Species) as a within their endemic ranges are unlikely candidates ‘species of native vegetation…outside its natural for declaration due to the absence of externalities range…or a groundcover’ (NVR). (Auld and Johnson 2011). The current declaration of ‘Invasive species’ (previously Invasive native galvanised burr, an early colonising shrub of rangeland scrub) Section 38 of the NVR defines a declared throughout western New South Wales (in its endemic ‘invasive species’ (previously Invasive Native range) is a historical anomaly. Scrub) as ‘a species of native vegetation…within There should be no restriction on declaring Aus- its natural range…and…is densely regenerating or tralian native plant species that have been shown to is invading plant communities in which the species consistently occur outside their endemic range (at does not generally occur, which is causing decline least for the last 50 years) and which demonstrate in the structure or composition of the vegetation the characteristics of invasive plants. (This discus- community’ (NVR). sion, for brevity, necessarily ignores the spread of native plant species in response to climate change). PLANT SPECIES IN NEW SOUTH WALES Declaration of such invasive plants has occurred with There are at least 6049 native (G. Chapple, pers. 14 tree, shrub, vine and epiphytic species that are not comm. November 2012) and 1648 naturalised (intro- endemic to, but are beginning to invade Lord Howe duced) plant taxa recorded in New South Wales (J. Island. With one exception, this being coastal teatree Hosking pers. comm. January 2013). When native (Leptospermum laevigatum), a species that is invasive Australian plants that are not indigenous to the state in coastal dune areas in New South Wales, all these but have naturalised in New South Wales (n = 39)
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