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Home , Cape (geography), Cape York Peninsula

A World Heritage Nomination for Cape York

i Cape York is of course the home to Shelburne … an extraordinary landscape where it’s hard to believe that you are in fact on Earth, when you’re standing among those pure white . Tony Burke, Environment Minister

© Commonwealth of 2012 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. Requests and enquiries concerning reproduction and rights should be addressed to Department of Sustainability, Environment, Water, Population and Communities, Public Affairs, GPO Box 787 Canberra ACT 2601 or email [email protected] The views and opinions expressed in this publication are those of the authors and do not necessarily reflect those of the Australian Government or the Minister for Sustainability, Environment, Water, Population and Communities. Images credits: Kerry Trapnell and the Brian Furby Collection CAPE YORK PENINSULA— ONE OF THE WORLD’S SPECIAL PLACES

A world heritage nomination with Traditional Owner consent and community support

The Australian Government is committed to The Australian Government’s commitment a world heritage nomination for appropriate to Traditional Owner consent respects areas of Cape York Peninsula, subject to the rights of Indigenous people and the Traditional Owner consent. nomination will only proceed for those areas where Traditional Owners have Community consultation is taking place given their consent. on preparing a nomination document for submission to the World Heritage Centre. The Australian Government will continue A successful world heritage nomination to work with Traditional Owners, the requires a thorough assessment of the Government, the peninsula natural and cultural values of Cape York community, pastoralists and other Peninsula. landholders to share information and provide opportunities for open and meaningful discussion on the rich cultural and natural heritage values of Cape York Peninsula and how they can best be managed.

© Commonwealth of Australia 2012 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. Requests and enquiries concerning reproduction and rights should be addressed to Department of Sustainability, Environment, Water, Population and Communities, Public Affairs, GPO Box 787 Canberra ACT 2601 or email [email protected] The views and opinions expressed in this publication are those of the authors and do not necessarily reflect those of the Australian Government or the Minister for Sustainability, Environment, Water, Population and Communities. 1 Images credits: Kerry Trapnell and the Brian Furby Collection WHAT IS THE WORLD HERITAGE LIST?

The World Heritage List recognises places representing the best examples of the world’s cultural and natural heritage— places that are important for all nations, people and cultures— that are universal.

The World Heritage List is established under Australia has 19 places on the World the UNESCO World Heritage Convention. Heritage List, including: the Wet of The World Heritage Committee, which Queensland, the Great Barrier , the administers the World Heritage List, is Sydney Opera House, Purnululu National made up of representatives from 21 of Park, Lord Howe , the Greater Blue the signatory countries to the Convention, and Kakadu National Park. elected by their General Assembly. World heritage listing brings international Australia is one of 188 countries that have recognition and provides protection for signed the World Heritage Convention. the listed cultural and natural heritage As a signatory, the Australian Government values of a place under Australia’s national has a responsibility to identify, protect, environmental law—the Environment conserve, and present the cultural and Protection and Conservation natural heritage in our country that is Act 1999 (EPBC Act). considered to be of outstanding value to World heritage listing does not prevent all peoples of the world. The Australian communities from continuing their Government is also responsible for economic development and the tenure nominating places to be considered by the of listed areas does not change. Only UNESCO World Heritage Committee for activities that are likely to have a significant inscription on the World Heritage List. impact on the listed world heritage values (or other matters of national environmental significance) require referral and approval under the EPBC Act.

2 | A World Heritage Nomination for Cape York Peninsula Australia has 19 places on the World Heritage List, including: the Wet Tropics of Queensland, the , the Sydney Opera House, Purnululu National Park, Lord Howe Island, the Greater Blue Mountains and Kakadu National Park.

World heritage listing brings international recognition and provides protection for the listed cultural and natural heritage values of a place under Australia’s national environmental law—the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act).

World heritage listing does not prevent communities from continuing their economic development and the tenure of listed areas does not change. Only activities that are likely to have a significant impact on the listed world heritage values (or other matters of national environmental significance) require referral and approval under the EPBC Act.

3 WHAT MAKES CAPE YORK PENINSULA A PLACE OF WORLD HERITAGE VALUE?

Cape York Peninsula has long been recognised as one of Australia’s most important heritage places—a place with a rich and diverse Indigenous story, where culture remains strong and communities have cared for their country since time immemorial. It is a vast area with spectacular landscapes of exceptional beauty and a mosaic of ecosystems supporting extraordinary biological biodiversity. woodlands, rainforest and spectacular sandstone escarpments adjoin vast catchments and wetlands. The integrity of the peninsula’s interconnecting ecosystems and their evolutionary links with make it one of a kind. Many of its plants and animals are found nowhere else in the world.

Cape York Peninsula is an exceptional Peninsula and complement the other world example of a large, complex and diverse heritage cultural properties in Australia cultural landscape whose functioning such as Uluru-Kata Tjuta and Kakadu. ecosystems have been shaped by a Cape York Peninsula supports some of the continuum of Aboriginal land management last remaining large areas of savanna in that combines both physical and spiritual good condition anywhere in the world. The maintenance of resources over many peninsula also includes a large number of thousands of years. Subject to Traditional high integrity perennial river catchments Owner consent, world heritage listing would and wetland complexes, which represent recognise the rich and diverse cultural important seasonal refuges for many traditions and land management practices northern Australian animal species and of the Indigenous people of Cape York international migratory birds.

4 | A World Heritage Nomination for Cape York Peninsula Even though the region accounts for only What is outstanding three per cent of the Australian landmass, universal value? it contains 18.5 per cent of Australian plant species, including more than 3,300 Outstanding universal value is the central vascular plant species and 1,100 rainforest idea of the World Heritage Convention. species. It is also significant for the Broadly, its meaning follows the common diversity of its reptiles, frogs, butterflies, sense interpretation of the words: orchids, sedges, grasses and Outstanding = For properties to be of species—many of which are found only on outstanding universal value they should be the peninsula. exceptional, or superlative—they should be The region’s outstanding geological among the most remarkable places on Earth. features include the active fields Universal = Properties need to be of Shelburne Bay and Cape Flattery, the outstanding from a global perspective. remarkable granite fields of Cape World heritage does not aim to recognise Melville and hundreds of kilometres of areas that are remarkable from solely undisturbed coastline adjoining the Great a national or regional perspective— Barrier Reef World Heritage Area. countries are encouraged to develop other approaches to recognise these places. The world heritage Value = What makes a property nomination outstanding and universal is its “value”, The world heritage nomination document or the natural and/or cultural worth of is prepared in consultation with key interest a property. This value is based on groups and the community and submitted standards and processes established by the Australian Government. The under the World Heritage Convention’s nomination must provide comprehensive Operational Guidelines (see evidence, through national and international whc.unesco.org/en/guidelines). comparisons, of how the nominated areas To be considered of outstanding universal demonstrate outstanding universal value. value, a property needs to meet one or more of 10 world heritage criteria. It also needs to meet the conditions of integrity and/or authenticity (for cultural properties), and have an adequate system of protection and management.

5 Indicative/potential world heritage values of Cape York Peninsula

Cultural values Natural values

Cultural values can only be decided Areas of Cape York Peninsula may have through a thorough consultation and outstanding universal value under the planning approach with the Peninsula’s following natural world heritage criteria: Traditional Owners (vii) Superlative natural phenomena/areas Subject to this consultation with Traditional of exceptional natural beauty: Owners, areas of Cape York Peninsula may • Vast area of high integrity diverse have outstanding universal value under the ecosystems following cultural world heritage criteria: • Spectacular coastal dune fields (iii) a unique or at least exceptional • Steep eastern escarpments and testimony to a living cultural tradition or to monsoon rainforests: McIlwraith a civilisation which is living or which has and Iron Ranges disappeared • Superb natural river catchments (v) an outstanding example of a traditional • Hundreds of kilometres of undisturbed human settlement, land-use or -use coastal scenery which is representative of a culture (or • Flood and marine plains. cultures), or human interaction with the environment especially when it has become (viii) Outstanding examples representing vulnerable under the impact of irreversible major stages of earth’s history and change, and geological processes: • Cape York Peninsula’s (vi) directly or tangibly associated with geomorphological features show events or living traditions, with ideas, or that entire landscapes can persist for with beliefs, with artistic and literary works millions of years of outstanding universal significance. • Shelburne Bay, Cape Bedford and Cape Flattery tropical dune fields • Intact barrier “chenier” dune formations stretching for hundreds of kilometres.

6 | A World Heritage Nomination for Cape York Peninsula (ix) Outstanding examples representing Defining boundaries significant on-going ecological and biological processes: The boundaries of a potential Cape York world heritage nomination will depend on • an extensive, high integrity mosaic of where the natural and cultural heritage diverse ecosystems, which includes values of outstanding universal value are globally rare tropical savanna identified and where Traditional Owner • biological connectivity between consent has been given. Australia and New Guinea that continues to evolve The Australian Government will work • a flora that is representative of the with Traditional Owners, the Queensland global development of sclerophyll Government and the Cape York community (hard-leaved) plants during the to help identify these values. Tertiary period; including rare tropical heaths • west flowing river systems that support extensive coastal wetlands through the dry season.

(x) Outstanding examples representing the most important and significant natural habitats for in-situ conservation of biological diversity: • continuous and diverse native vegetation featuring high integrity tropical monsoon savanna, rainforests, grasslands, heathlands and extensive wetland systems. • high species richness for key plant and animal groups; many of which are only known from the Cape York Peninsula, including: -- for plants: orchids, grasses, sedges and -- for animals: reptiles, amphibians, freshwater fish and butterflies.

7 World heritage listing does not change land ownership and existing land managers continue to manage their land.

Management arrangements of world heritage properties in Australia vary. The primary management objectives for world heritage properties are to: • protect, conserve and present the world heritage values of the property • integrate the protection of the area into a comprehensive planning program • give the property a function in the life of the Australian community • strengthen appreciation and respect for the property’s world heritage values, particularly through educational and information programs • keep the community broadly informed about the condition of the world heritage values of the property, and • take appropriate scientific, technical, legal, administrative and financial measures necessary for achieving these objectives.

8 | A World Heritage Nomination for Cape York Peninsula A PLACE ON THE WORLD HERITAGE LIST

A place on the World Heritage List brings benefits to local communities and the nation as well as management responsibilities.

Benefits of world heritage listing World heritage listing does not change land • international recognition of our ownership and existing land managers country’s rich heritage continue to manage their land. • conservation, protection, presentation Management arrangements of world and transmission to future generations heritage properties in Australia vary. The of our most important cultural and primary management objectives for world natural heritage heritage properties are to: • benefits for sustainable tourism • protect, conserve and present the development and promotion world heritage values of the property opportunities with internationally • integrate the protection of the area recognised world heritage brand into a comprehensive planning • support for infrastructure and program services, and • give the property a function in the life • opportunities for an expanded of the Australian community conservation economy—new jobs • strengthen appreciation and in managing natural and cultural respect for the property’s world heritage. heritage values, particularly through educational and information programs Managing world heritage listed • keep the community broadly informed properties about the condition of the world Under the UNESCO World Heritage heritage values of the property, and Convention, the Australian Government • take appropriate scientific, technical, is required to protect and conserve world legal, administrative and financial heritage properties. measures necessary for achieving these objectives.

9 Regard is also given to: When will areas of Cape York Peninsula • the involvement of the local be nominated for world heritage? community in the planning and The Australian Government will submit a management of a property nomination once the assessment of potential • ensuring the provision of essential outstanding universal values is completed services to communities within and and Traditional Owners have given their adjacent to a property consent. • allowing provision for use of the property which does not have a Have boundaries already been decided? significant impact on the listed world No. Boundaries for a nomination will only be heritage values and their integrity, and determined when the outstanding cultural • recognising the role of and natural heritage values have been managers in the protection of a identified and Traditional Owners have given property’s values. consent for areas to be included.

Will the whole of Cape York Peninsula FREQUENTLY ASKED be listed? QUESTIONS The Australian Government is not proposing Who decides what parts of Cape York a ‘blanket listing’ of Cape York Peninsula. Peninsula are included in the world Only areas where Traditional Owner consent heritage nomination? is given will be included. Areas to be considered are being identified through a Traditional Owners will decide those areas rigorous assessment of heritage values and they wish to put forward for inclusion in the consultation with communities. More work is world heritage nomination. The Australian required to identify these values and where Government will submit a nomination to the they occur. World Heritage Committee for areas where potential world heritage values have been Will the residents of Cape York identified and Traditional Owners have given Peninsula be consulted? their consent. Yes. Consultation has been underway The World Heritage Committee decides since 2007 and is ongoing. A nomination whether to include a place on the World to include areas of Cape York Peninsula on Heritage List following rigorous assessment the World Heritage List will only go ahead and advice from its advisory bodies—the with Traditional Owner consent. Community International Conservation Union (IUCN) for support is also important for a successful natural values and the International Council nomination. on Monuments and Sites (ICOMOS) for cultural values.

10 | A World Heritage Nomination for Cape York Peninsula How are Traditional Owners being Many economic activities continue in world involved? heritage areas. For instance, recreational and commercial fishing continues in the Face to face meetings are being held with Great Barrier Reef World Heritage Area, Traditional Owner groups to discuss world and tourism at Kakadu National Park is a heritage and whether they are interested in foundation for the local economy. their country being included in a nomination. Only areas where Traditional Owners have The World Heritage Committee generally given consent will be included. considers that mining should not be allowed inside a world heritage property. The Will world heritage listing stop existing International Council on Mining and Metals industries and activities? has committed to not explore or mine in Generally, no. World heritage values world heritage sites. are protected under Australia’s national Can grazing continue in a world environmental law—the Environment heritage area? Protection and Biodiversity Conservation Act 1999 (EPBC Act). The EPBC Act allows Yes, grazing continues in Australian world for continuation of existing lawful use of heritage areas such as Willandra Lakes land or sea if it commenced before the Act in New South Wales and in came into force on 16 July 2000 and has Western Australia, and in other world continued uninterrupted or regularly from heritage sites around the globe. before this date. Does world heritage listing make the In addition, activities that have already whole area a national park? been approved under the EPBC Act are not No. World heritage areas can cover all sorts affected by world heritage listing. of land tenures including pastoral leases, New activities would need to be considered freehold, Aboriginal lands and unallocated for their potential impact on world heritage state land. values. If a new activity was likely to have a significant impact on the values, the Will world heritage listing affect the proposal would need to be referred for tenure of my land or access to my land? formal consideration under the Act. World heritage listing does not change land tenure, access or ownership. World heritage What about new industries and areas do not become state or federal activities? government land or the property of any World heritage listing does not automatically international body or foreign power. prevent development. Only activities that are likely to have a significant impact on world heritage values (or other matters of national environmental significance) require approval under the EPBC Act.

11 How are world heritage listed properties Can you fish and camp in world heritage managed? areas?

World heritage listing does not change land World heritage listing does not affect ownership and existing land managers existing rights and access to places to fish still manage their land. Under the World and camp. Heritage Convention, the Australian Fishing and camping are popular activities Government is responsible for protecting in many of Australia’s world heritage areas the world heritage values of the properties including Fraser Island, the Great Barrier and reporting periodically on their condition. Reef and Kakadu National Park. Protection is based on the listed values and there is a shared responsibility between the Activities such as these may already be Australian and state governments and local managed under state government legislation communities to ensure listed places are and through national park management plans. effectively managed. Management models for Australian world heritage properties vary Are native title rights affected by a to fit circumstances. world heritage nomination?

Will the community have a say in how Native Title rights are not affected by a world a world heritage area on Cape York heritage nomination or listing. An area will Peninsula will be managed? only be nominated for world heritage listing if Traditional Owners agree. Yes. The community will be involved in developing any new management Where can I get further information? arrangements for protecting any listed For further information please: cultural and natural values of Cape York • Visit the Australian Government’s Peninsula. website www.environment.gov.au/ Will the government provide funding heritage/about/world to landowners whose properties are • Contact the department’s Community included in the world heritage listed area? Information Unit on 1800 803 772 or The Australian Government may provide • Email your enquiry to technical and/or financial assistance for [email protected] the identification, promotion, protection or conservation of places on the World Heritage List.

12 | A World Heritage Nomination for Cape York Peninsula 13 HER69.0513