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Maintaining a healthy and resilient Great Barrier

The Commonwealth and Queensland Governments’ Interim Response to the Outlook Report 2009

| 2 INTRODUCTION

The Commonwealth and Queensland fishing, generates around $150 million governments are committed to ensuring each year, with more than 14 million visits the long term protection of the Great occurring in 2007. Barrier Reef (the Reef). The Great Barrier Reef Outlook Report 2009 The Reef is undisputedly one of the world’s is an important stocktake on the state of most important natural assets. It is the the Reef and its outlook, based on the best largest ecosystem in the world, available information. It is an opportunity to home to thousands of species including ensure our efforts to protect the Reef are on 1,500 of the world’s marine fish species, the right track. over a third of its soft coral species and The Outlook Report tells us that the Reef six of its seven species of marine turtle. continues to be one of the world’s healthiest Its unparalleled biological diversity is coral reef ecosystems. But it is also clear internationally recognised as being of that there are significant challenges that outstanding universal value through its need to be met. inscription on the World Heritage List. The Commonwealth and Queensland The significant environmental values of the governments are committed to meeting Reef also provide the basis for substantial these challenges. This response to the economic activity. Tourism is a significant Outlook Report by the governments contributor. Around two million tourists visit identifies and accelerates key actions the Reef each year, supporting an industry that ensure the Reef stays one of the generating approximately $5 billion annually best protected in the world. The Outlook and 50,000 jobs. Ten major commercial Report will inform policy and management fisheries operate in the Reef, contributing decisions into the future, and provide the around $140 million to the economy each baseline against which our collective efforts year. Recreational use of the Reef, including will be measured.

The Hon Peter Garrett AM MP The Hon Kate Jones MP Australian Government Minister Queensland Government for the Environment, Heritage Minister for Change and the Arts and Sustainability

| 1 THE GREAT BARRIER REEF OUTLOOK REPORT

The Great Barrier Reef Outlook Report The Report identifies that overall the Reef 2009 (the Outlook Report) provides a is currently in good condition. While not comprehensive assessment of the state as healthy as its state prior to European of the Reef and its long term outlook, influence, habitats and populations of almost based on the best available information. all species are generally intact. Nevertheless, a number of important of concern The Report is the first of its kind. It is a new are identified, and pressures on the Reef legislative requirement established by recent now and into the future, if not appropriately amendments to the Great Barrier Reef addressed, may see the health and resilience Marine Park Act 1975. Under that Act, reports of the Reef decline significantly over the next must be prepared by the Great Barrier Reef 50 years and beyond. Marine Park Authority every five years, independently peer reviewed, and tabled in The overwhelming factor driving this outlook both Houses of the Australian Parliament. is climate change. Coral reef ecosystems are among the most vulnerable to the The requirement for a five-yearly Outlook impacts of climate change. While the Reef Report ensures that governments and the is no exception, the Outlook Report tells us public periodically have a comprehensive that it is better positioned than other coral and scientifically robust assessment of reef ecosystems, a testament to its strong how effectively the Reef is being protected. management. Nevertheless, effective global Importantly, Outlook Reports consider action to reduce greenhouse emissions both the state of the Reef, and its will be critical to the Reef’s future. So too will predicted future condition, ensuring that be continued strong management of the Reef longer term considerations are central to to build and maintain its capacity to withstand today’s decision making. and adapt to the impacts of climate change. The 2009 Outlook Report provides key The Outlook Report identifies key priorities evidence and information on which to take for management, including improving stock of current actions and ensure we are the quality of water flowing into the Reef on the right track. It will underpin policy and from adjacent catchments, protecting key management decisions now and into the coastal habitats, and managing the broader future and provide a benchmark against ecosystem impacts of extractive activities which we can measure progress. such as fishing. The effectiveness of action to address these key pressures will be Key findings of the critical in rectifying current areas of concern Outlook Report and meeting future challenges presented by climate change. The 2009 Outlook Report identifies that the Reef continues to be one of the world’s The Outlook Report also identifies key gaps healthiest coral reef ecosystems, but that in our understanding of the Reef. Addressing significant challenges must be met to ensure these gaps will help us to better understand this remains the case into the future. drivers of its long term future and put in place appropriate responses.

2 | Maintaining a healthy and resilient Great Barrier Reef RESPONDING TO THE OUTLOOK REPORT

The challenges facing the Reef now support management and protection. The and into the future require a new Outlook Report will also inform policy and cooperative and re-energised approach management decisions into the future. by the Commonwealth and Queensland governments. Pressures such as Responding to Climate Change climate change, catchment and coastal development were not Climate change is the single most contemplated when formal protection of the significant threat to the Reef. Increasing sea Reef was first established in 1975 through water , rise, ocean enactment of the Great Barrier Reef acidification and other effects of climate Marine Park Act 1975. change are already impacting on the Reef. Impacts will worsen should greenhouse Recognising this, the Prime Minister and gas levels continue to rise, ultimately with Premier of Queensland signed a new Great potentially catastrophic consequences for Barrier Reef Intergovernmental Agreement the Reef. in June 2009. The agreement replaces the 1979 ‘Emerald Agreement’, providing Climate change is a global issue requiring a a modern framework for the governments global . Australia is closely engaged to together to address both local in international negotiations to secure an and external pressures on the Reef. effective and fair global approach and is Implementation of the agreement will be committed to playing its part. driven by the Great Barrier Reef Ministerial • The Commonwealth Government will Council. The Council met for the first commit to reducing emissions by time under the new agreement on 3 July 25 per cent below 2000 levels by 2020 2009. It was briefed on the findings of the as its contribution to a global outcome Outlook Report and set in motion action on that leads to stabilisation of greenhouse a number of key issues, including climate in the at 450 parts change and catchment water quality. per million or lower. This document responds to the findings • The Commonwealth Government will of the Outlook Report, identifying key deliver its share of global emissions actions that the governments are taking reductions through measures including to ensure the Reef remains one of the the Carbon Pollution Reduction Scheme world’s most significant natural assets. It (CPRS), the expanded Mandatory is not an exhaustive list of actions, nor is Renewable Target, and substantial it the extent of government consideration investment in renewable energy, energy of the Outlook Report. The response efficiency and carbon capture and storage. addresses the key pressures of climate change, catchment water quality, coastal • ClimateQ: toward a greener Queensland, development and impacts of fishing, as well released in 2009, sets out the next steps as action to ensure effective management in Queensland’s transition to a low carbon of the Reef and deliver research to future. The Queensland Government has

| 3 committed to playing its part in meeting a • The governments will support ongoing national target of 60 per cent below 2000 research to generate the information emissions levels by 2050, and supports needed to respond and adapt to climate the CPRS as the central policy mechanism change risks and build resilience. This for reducing Australia’s emissions. It has will build on an existing assessment of released a suite of emission reduction the vulnerability of the Reef to climate measures to complement the CPRS, change, Climate Change and the Great including the Queensland Renewable Barrier Reef: A Vulnerability Assessment. Energy Plan and significant investments Research will be delivered through a range in carbon capture and storage, renewable of sources, many of which are identified in energy and energy efficiency. the final section of this document.

Even under the most optimistic scenarios for global reductions in greenhouse gas Addressing Catchment emissions, climate change will place Water Quality substantial pressure on the Reef. What this The poor quality of water running into the means for the future health of the Reef will Reef from adjacent catchments is a major depend on its capacity to withstand and threat to the ecosystem. Significant amounts adapt to the impacts of climate change – of nutrients, sediments and pesticides are referred to as its ‘resilience’. entering the Reef, primarily from broadscale • Building and maintaining ‘resilience’ is agricultural land use. This is affecting the central to efforts by the governments to health of the Reef, particularly inshore coral protect the Reef. Through measures such reef habitats, which is in turn decreasing the as Marine Park zoning and the Reef Water ability of the ecosystem to withstand and Quality Protection Plan (discussed below), recover from other unrelated impacts, such the governments are seeking to reduce as coral bleaching events and increased non-climate change related pressures and storm intensity associated with climate disturbances, so that the Reef is more able change. These significant direct and indirect to withstand and recover from the impacts impacts make improving catchment water of climate change. quality a high priority. Recognising this, the governments have • To drive this resilience-based approach, committed to a new Reef Water Quality the governments are developing a joint Protection Plan (Reef Plan), a joint plan of plan on managing the impacts of climate action to halt and reverse the decline in the change on the Reef. This will build on quality of water flowing into the Reef. and update the existing Commonwealth Government Great Barrier Reef Climate • The new Reef Plan updates the Change Action Plan 2007–2012, which original 2003 Reef Plan to accelerate is supported by $8.9 million. A key focus improvements in the quality of water will be action to identify and evaluate leaving catchments and entering the strategies for maximising resilience. Reef. It includes ambitious, achievable targets supported by a more targeted suite of actions.

4 | Maintaining a healthy and resilient Great Barrier Reef • The Reef Plan will be delivered in quality of water entering the Reef – the partnership with industry, communities and Reef Rescue package. This is providing regional natural resource management assistance to farmers and land managers bodies, which are themselves also driving in Reef catchments to increase the change through voluntary codes of adoption of land management practices practice, farm management systems and that reduce runoff of nutrients, pesticides other activities. and sediment from agricultural land. The Commonwealth Government is also • Through the measures identified in supporting action to improve the quality the Reef Plan, the governments will, by of water entering the Reef through the 2013, halve runoff of harmful nutrients broader Caring for our Country initiative, and pesticides and ensure at least and its $12.9 billion Water for the 80 per cent of agricultural enterprises Future initiative. and 50 per cent of grazing enterprises adopt land management practices that • The Queensland Government has will reduce runoff. committed to deliver a $50 million Reef Protection Package to protect the • A Reef Plan Monitoring and Evaluation Reef from the impacts of chemical and Strategy has been developed and other farm run-off. On top of existing Monitoring and Reporting Program commitments and actions, this means designed ready for implementation in late the Queensland Government has 2009. This will enable the governments committed $175 million over five to measure the success of Reef Plan years to address Reef catchment issues. implementation and publicly report on progress towards the Reef Plan goals and objectives. Effectively Managing • As progress is made, the governments the Great Barrier Reef will evaluate what further measures may Integrated management of marine and be required beyond 2013 to ensure that national parks by the Commonwealth and catchment runoff has no detrimental Queensland governments provides the impact on the Reef by 2020 at the latest. foundation for ensuring use of the Reef is The new Reef Plan is supported consistent with its long term protection. The by substantial commitments by Great Barrier Reef Marine Park is one of the the two governments. largest marine protected areas in the world, covering around 344,400 square kilometres. • The Commonwealth Government has It is managed by a dedicated, independent committed over $2 billion to the Caring statutory authority – the Great Barrier Reef for our Country initiative, including a Marine Park Authority. It is complemented $200 million commitment to improve the

| 5 by the Great Barrier Reef Coast Marine and protection for the Reef as a Park covering adjacent Queensland coastal of “national environmental significance” waters, and national parks covering many of under the Environment Protection the islands within the World Heritage . and Biodiversity Conservation Act 1999 (EPBC Act). Marine and national park zoning requirements, defining what activities are • A joint Commonwealth-Queensland allowed in which areas, is a key strategy government field management program for maintaining the health and resilience of supports ‘on-ground’ management of the Reef. A significant rezoning of the Great the parks, including compliance and Barrier Reef Marine Park took effect in enforcement activities, assessment of July 2004, with complementary zoning also permit applications and the provision of established in related Queensland marine visitor facilities. Arrangements for the and island national parks. joint program were recently renewed and updated, and priorities and resourcing • The Outlook Report identifies that the needs for the program are being reviewed 2004 zoning is already having positive in light of Outlook Report findings and effects. The abundance and size of emerging issues such as climate change. key fish species in areas now closed to fishing has increased. The impacts of • Effective protection of the Reef is non-extractive activities, such as tourism, best achieved with the active and some research and shipping, are minimal. supportive involvement of Reef users Continuing to research and report on the and neighbouring communities. Through effectiveness of zoning, particularly its programs such as Reef Guardian broader biodiversity benefits, is a priority. Schools, Reef Guardian Councils and Eco-certification of high standard tourism • Realising the full potential of zoning operators, the Great Barrier Reef Marine through effective compliance and Park Authority is working to recognise administration of zoning requirements and foster environmental stewardship and is also a key priority. This is supported best management practices. Currently, through recent legislative changes and around 45 per cent of tourists visiting the a joint field management program. Reef do so with an ‘Eco Certified’ operator. • The legislative changes, which take A continued focus on fostering stewardship effect in November 2009, overhaul the among all Reef users and communities will Commonwealth Government’s regulatory be a priority. framework for the Reef. The changes • The governments are working establish a modern, robust regulatory with Traditional Owners to provide system, including increased penalties opportunities to formalise their aspirations for contravening zoning and other for management of their sea country. requirements, and the introduction of Mechanisms include Traditional Use of more flexible enforcement tools. The Marine Resource Agreements (TUMRAs), changes also provide legal recognition Indigenous Land Use Agreements (ILUAs)

6 | Maintaining a healthy and resilient Great Barrier Reef and Indigenous Protected Areas. Four The governments are responding to these TUMRAs are currently in place and the pressures in a number of ways. first ILUA in relation to the Great Barrier • Under the Commonwealth EPBC Act, Reef Marine Park was formalised in activities likely to have a significant impact June 2009. on a matter of “national environmental • The tourism industry is a key partner in significance” require the approval protection and management of the Great of the Commonwealth Environment Barrier Reef. Tourists visiting the Reef Minister. Protected of national contribute to its management through environmental significance include the payment of an Environmental Management World Heritage values of the Great Barrier Charge. Furthermore, many tourist Reef World Heritage Area, and from operators contribute to management and November 2009, the environment of the understanding of the Reef by participating Great Barrier Reef Marine Park. in reporting programs such as the Eye • Since commencement of the EPBC Act on the Reef environmental monitoring in 2000, around 160 activities have been program, BleachWatch, the Sightings regulated under the Act for potential Network, and visitor surveys. impacts on the Great Barrier Reef World Heritage Area. The findings of the Outlook Managing the Coastal Zone Report will serve to better inform future Coastal areas play an important role in the regulation, helping to ensure the potential broader ecosystem of the Reef. Estuaries, impacts of activities are fully understood wetlands, mangroves, sand dunes and other and that approval conditions produce habitats provide important linkages between the best possible environmental outcomes land, freshwater and marine environments, for the Reef. as well as feeding and breeding grounds for many marine species. • The governments are actively exploring the potential to undertake strategic The Outlook Report identifies that the assessments under the EPBC Act in development of coastal areas has, in relation to key coastal areas adjacent to some cases, resulted in a serious decline the Reef. Strategic assessments have the in the extent and condition of key coastal potential to better deal with the cumulative habitats. This may increase into the future impacts of incremental development than with the projected growth in population and case-by-case assessment and approval. economic activity in North Queensland. Rising sea levels associated with climate • The EPBC Act is currently subject change also present a key future pressure to an independent review. A key issue on coastal habitats. identified in public submissions and the Interim Report of the review is

| 7 the merits of an increased focus on development. The Queensland Coastal “landscape-scale” approaches, such as Plan will direct that maritime development strategic assessments. The final report occur within these identified Maritime of the review is due to be presented to Development Areas thereby protecting the Commonwealth Environment Minister coastal values outside of these areas. by 31 October 2009. • The Queensland Government is also • Development within the coastal zone is preparing regional plans under the regulated under Queensland’s Coastal Integrated Planning Act 1997 to manage Protection and Management Act 1995 and urban and infrastructure development. the Integrated Planning Act 1997. Land use The Queensland Coastal Plan will planning and development assessment inform regional plans and direct land use decision making is guided by the 2002 allocations by local government. The State Coastal Management Plan. Far North Queensland Regional Plan 2009–2013, the first prepared for a Reef • Based on the results of a statutory review catchment, includes a specific land use of the 2002 State Coastal Management policy, under the Coastal Management Plan, the Queensland Government has Desired Regional Outcome, requiring released a new draft Queensland Coastal planning schemes and development Plan. It will prevent future urban zonings proposals be consistent with zoning and being allocated in areas at risk of coastal management plans of the Queensland such as storm inundation Great Barrier Reef Coast Marine Park taking into account projected sea level and the Commonwealth Great Barrier rise by 2100. It also addresses coastal Reef Marine Park. process issues, biodiversity conservation, scenic amenity, public access and • A new draft State Planning Policy is prevents linear urban settlement patterns being developed to direct management being perpetuated along the coast. The of stormwater runoff from urban plan also provides guidance for land subdivisions aimed at ensuring managers to undertake strategically improved water quality outcomes. planned rehabilitation, maintenance and • New legislation will regulate the drainage conservation activities. The draft of the of wetlands in the Reef catchment area Queensland Coastal Plan is available for based on mapping of significant wetlands public comment until 31 October 2009 and under the Reef Coastal Wetlands is anticipated to be implemented in 2010. Protection Program. • The Queensland Government is currently • In association with the Commonwealth developing a methodology for identifying Government, Queensland has commenced areas most suitable for future maritime a project to capture high resolution digital elevation model data for developed areas of the Queensland Coast. Data will provide

8 | Maintaining a healthy and resilient Great Barrier Reef critical information to guide land use include the fate of non-retained catch, the planning and development decisions. incidental take of species of conservation Data will become available from 2011. concern such as dugong, and the broader ecosystem effects of taking predator • The Federal House of Representatives species, such as sharks. Standing Committee on Climate Change, Water, Environment and the Arts is The governments are working to undertaking an inquiry into climate change ensure fishing in the Reef continues and environmental impacts on coastal to be ecologically sustainable through communities. The Committee will report a number of means. on environmental pressures on coastal • The Queensland Government is areas, particularly in the context of climate responsible for the management of change and coastal population growth. fisheries in and around the Reef. The The inquiry report will be a key input into focus is on managing fisheries according development of a national coastal policy to the principles of ecologically sustainable by the Commonwealth Government. development, reducing the take of unwanted fish and continuing to reduce the Ecologically Sustainable potential impacts of fishing on all protected Management of Fishing species, including dugongs and turtles, Commercial, recreational, charter and by ensuring that any animal accidentally traditional fishing is the principle extractive caught can be quickly released unharmed. use of the Reef and is undertaken in • New fisheries measures introduced in 2009 accordance with a number of fisheries were primarily aimed at enhancing fisheries specific management plans. Fishing is an sustainability, minimising the impact on important and legitimate use of the Reef, unwanted fish inadvertently caught and supporting a commercial industry worth simplifying the management arrangements around $140 million each year and for stakeholders. These measures include a recreational industry worth around new size and bag limits for all major inshore $150 million each year. species primarily based on biological and The Outlook Report identifies a number risk based parameters, new netting rules of positive aspects of current fisheries to minimise impacts on non target species management arrangements, such as and new management arrangements for the positive affects of the introduction the take of shark. of bycatch reduction devices but also • For sharks there was a significant highlights some areas of concern. These reduction in total allowable commercial concerns relate both to the impact of fishing catch to 600 tonnes and specific on target species, some of which are known requirements to report catches to to be under pressure, as well as broader ecosystem impacts. These latter concerns

| 9 improve the information being gathered. • Through the Great Barrier Reef Ministerial In threatened species such as Council, the governments are developing sawfish and speartooth sharks became no an agreement promoting a collaborative take species and measures have been put approach to fishing-related policy, planning in place to protect larger breeding sharks, and management activities. A key focus of including the introduction of a maximum the agreement will be identifying common size limit of 1.5 . objectives, drawing from the work of the Australian Fisheries Management Forum • The Queensland Government intends to on a National Ecosystem Based Fisheries explore opportunities to further enhance Management Policy. fisheries management arrangements into the future by building on constructive Research to support stakeholder relationships, developing a collective responsibility to managing Management and Protection fisheries on a sustainable basis and Research and monitoring are an essential working in an adaptive policy environment underpinning for management and that can respond quickly to the needs protection of the Reef, including the periodic of the resource and its users. development of Outlook Reports. A significant amount of research is undertaken each year • Queensland Government fisheries by a wide range of researchers covering a management arrangements are assessed broad range of topics. for environmental performance by the Commonwealth Government under the • Key research providers include the EPBC Act, against the Guidelines for the Australian Institute of Marine Science, Ecologically Sustainable Management of the Australian Research Council (ARC) Fisheries. Assessments seek to ensure Centre of Excellence for Coral Reef that, over time, fisheries are managed Studies, and the CSIRO, particularly in an ecologically sustainable way. through its Wealth from Oceans Flagship, All fisheries operating in the Reef are Climate Change Adaptation National periodically assessed under the EPBC Act. Research Flagship, and Marine and Atmospheric Research Division. • Zoning requirements in place in the Commonwealth and Queensland marine • As part of the Commonwealth parks also help to ensure the ecological Government’s new Super Science sustainability of fishing by protecting Initiative, announced in the 2009–10 habitat and providing refuges for key Budget, the Government will invest species. Zoning may also help maintain $387.7 million in infrastructure for marine fish stocks in areas remaining open to science and climate change research fishing through “spill-over” from areas that will improve Australia’s ability to closed to fishing. respond to climate change and to manage our terrestrial and ocean resources.

10 | Maintaining a healthy and resilient Great Barrier Reef Among other things, these investments The Outlook Report provides a foundation will extend tropical marine research for coordinating and targeting research facilities. Through the related Super supporting management and protection of Science Fellowships, early-career the Reef. By requiring periodic reporting fellowships will also be offered through on the health and resilience of, key the ARC to promising young marine pressures on, and outlook for the Reef, and climate researchers. Outlook Reports serve as a means for focusing research on key management • The $100 million Commonwealth questions such as monitoring the Environment Research Facilities program condition of the Reef and trends over is supporting research that will assist in time, understanding pressures and meeting key environmental challenges. The risks, and developing and evaluating the program includes the $40 million Marine effectiveness of management responses. and Tropical Sciences Research Facility, Reflecting this, the Great Barrier Reef which is specifically funding research to Marine Park Authority is investigating support the sustainable management of opportunities for improving the targeting, the Reef, as well as the Wet Tropics of coordination, sharing and communication Queensland World Heritage Area, and of research in light of the Outlook Report, Torres Strait. Funding for public good at the request of the Great Barrier Reef environmental research beyond the life of Ministerial Council. these programs is currently under review.

• The National Climate Change Adaptation Research Facility is coordinating and undertaking research to underpin climate change adaptation efforts. A National Adaptation Research Plan for Marine Biodiversity & Resources is under development.

• The Australian Government’s Reef Rescue initiative includes a $10 million Reef Water Quality Research and Development Program to improve understanding of the link between farm management practices and environmental impacts.

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Photographs courtesy of the Great Barrier Reef Marine Park Authority.

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