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Pestsmart Report Template Discussion paper: Effective citizen action on invasive species The institutional challenge Professor Paul Martin Professor Darryl Low Choy Dr. Elodie LeGal Dr. Kylie Lingard 2016 Discussion paper: Effective citizen action on invasive species The institutional challenge Professor Paul Martin, University of New England Professor Darryl Low Choy, Griffith University Dr. Elodie Le Gal, University of New England Dr. Kylie Lingard, University of New England Contact: Professor Paul Martin University of New England Armidale, 2351 [email protected] 2016 An Invasive Animals CRC Project Disclaimer: The views and opinions expressed in this report reflect those of the author and do not necessarily reflect those of the Australian Government, Invasive Animals Ltd, or the Invasive Animals Cooperative Research Centre. The material presented in this report is based on sources that are believed to be reliable. Whilst every care has been taken in the preparation of the report, it is “as is”, without warranty of any kind, to the extent permitted by law. Published by: Invasive Animals Cooperative Research Centre. Email: [email protected] Internet: http://www.invasiveanimals.com Web ISBN: 978-0-9924083-0-5 © Invasive Animals Ltd 2016 This work is copyright. The Copyright Act 1968 permits fair dealing for study, research, information or educational purposes. Selected passages, tables or diagrams may be reproduced for such purposes provided acknowledgement of the source is included. Major extracts of the entire document may not be reproduced by any process. The IA CRC gratefully acknowledges funding support from the Australian Government through its Cooperative Research Centre’s Program. This document should be cited as: Martin P, Low Choy D, Le Gal E and Lingard K. (2016). Effective Citizen Action on Invasive Species: The Institutional Challenge. Invasive Animals Cooperative Research Centre: Canberra. Front cover photo: Kris Foster ii Invasive Animals CRC Contents Executive Summary ......................................................................... 1 Glossary ....................................................................................... 3 1. Introduction ............................................................................. 5 1.1 Evidence ............................................................................ 5 1.2 Invasive animals: A strategic problem for Australia ........................ 6 1.2.1 How effectively is Australia dealing with invasive species? ................. 8 1.3 The unique characteristics of the problem ................................... 9 1.4 Management effectiveness ..................................................... 10 2. Citizen focus: The blind spot? ..................................................... 12 2.1 Institutional performance and citizen action .............................. 12 2.2 Why supporting citizen action is essential .................................. 13 2.2.1 The limits to government authority and capacity............................. 14 2.3 Institutions shape citizen behaviour ......................................... 14 3. The behavioural effects of institutions .......................................... 16 3.1 A systems perspective .......................................................... 16 3.2 How should we evaluate invasive species institutions? .................. 18 3.2.1 The accountability gap .............................................................. 20 3.2.2 The resources gap .................................................................... 21 3.2.3 Citizen engagement .................................................................. 21 3.2.4 Effective coordination ............................................................... 22 3.2.5 Respecting citizens ................................................................... 24 3.2.6 Administrative feasibility ........................................................... 24 4. Directions for institutional innovation ........................................... 26 4.1 Managing behaviour ............................................................. 26 4.2 Creating incentives .............................................................. 27 4.3 Improved resourcing ............................................................ 28 4.4 Reducing fragmentation ........................................................ 29 5. Conclusions ............................................................................ 31 6. Appendixes ............................................................................ 32 6.1 Resource A: IACRC “Facilitating Effective Community Action” ................... 32 6.2 Resource B: Resourcing community action ............................................ 35 6.3 Resource C: Key studies and reports .................................................... 49 6.4 Resource D: Australian Laws, Regulations, Policies and Programs ............... 74 6.5 Resource E: Stakeholders .................................................................. 98 6.6 Resource F: Media Reports on Political and Social Dimensions ................. 103 6.7 Resource G: Addressing Human Dimensions ......................................... 113 6.8 Resource H: Selected International Comparisons .................................. 119 Effective citizen action on invasive species iii List of Figures Figure 1: The reported presence of wild pigs, wild dogs, feral cats, rabbits and foxes across Australia................................................................................................ 7 Figure 2: Bio-fuel plantation system ................................................................... 17 Figure 3: Invasive Species System management silos .............................................. 18 List of Tables Table 1: Proposed management criteria for invasive species institutions ..................... 19 Table 2: Proposed citizen-focused criteria for invasive species institutions ................. 19 iv Invasive Animals CRC Executive Summary Invasive plants, animals, fish and other species cause significant harm and put human values at risk. Invasive animal control is often difficult because invasive species breed, adapt and expand exponentially. Control methods are often costly and can result in non-targeted economic, social and environmental impacts. Invasive animal management is a ‘wicked’ policy problem because it is a highly complex environmental issue. Control efforts are often insufficient to ensure full and long-lasting eradication. The effectiveness of invasive species management is also jeopardised by the geographical and often catastrophic dimension of this unique challenge. Australia, which is a continent characterised by a mega-biodiversity and a relatively small population density, particularly in rural and remote areas, faces unique institutional challenges to effective community engagement for invasive species management. Yet, the control of established invasive species depends significantly on private citizens: as landholders or observers who detect incursions; as landholders and volunteers who control these incursions; as activists for or against control; and as voters who shape political preferences. Invasive species management is affected by the ‘Invasive Species System’ which encompasses the many overlapping rules, resourcing arrangements and bureaucratic structures that support or impede effective community action for protecting Australian’s biodiversity and agricultural values. The Australian institutional environmental also determines how the economic, social and environmental costs and benefits are distributed amongst the urban, peri-urban and rural population. Invasive species management can raise significant distributive issues that can contribute to widening the gap between the urban rich and the rural poor. Australia’s federal and state government policies emphasise reliance on private citizens to detect and manage hazardous invasive species once they enter Australia. To support citizen action, farm organisations have increased their financial assistance to landholders for fighting the invasive species threat. Voluntary land management and conservation programs are also growing to develop effective community capacity-building mechanisms. However, with climate change and global warming issues, the pressures of invasive species upon natural, agricultural and humans systems are increasing and the resources for effective community- driven control strategies are chronically inadequate. Thus, whilst the invasive species issue seems to seldom discussed in the media and political arena, the need to ensure that institutional arrangements support effective citizen action is of national importance. This report summarises the key areas where reform is needed and ‘puts on the table’ priorities and proposals that should be considered. Its focus is institutional issues that affect voluntary citizen action for the control of invasive species (particularly major vertebrate pests) in rural and peri-urban areas. Complementary publications from the Invasive Animals Cooperative Research Centre Program 4 (“Facilitating Effective Citizen Action on Invasive Species”) provide further analysis. These documents include our report on the extensive community consultations that informed this Discussion Paper and our report on reform recommendations.1 The overall purpose of these evidence-based reports is to stimulate discussion, agreement and eventual reform to strengthen community resilience against the 1 Martin,
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