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FINAL Consultation Information Package CONSULTATION INFORMATION PACKAGE Application for authorisation under the Aboriginal Heritage Act 1988 (SA) Koonalda Cave Tourism Proposal Applicant: Ancient Land Tours Pty Ltd Application Type: Authorisation under section 23 of the Aboriginal Heritage Act 1988 (SA) Application Area: The application area comprises the Koonalda Cave doline (sinkhole), a 20 metre wide zone extending from the lip of the doline and those areas inside the cave (including floors, walls and ceilings) marked Zone A and Zone B on the plan at Attachment 1. Proposed Activities: The Proposal involves the provision of guided commercial tours inside designated areas of Koonalda Cave and minor modifications to the cave to facilitate safe access for guided visitors, such as the installation and/or upgrading of anchor points and minor repairs to existing steps and ladders. Figure 1 - View of the Koonalda Cave doline from a nearby access track (image courtesy of Applicant) 1 INTRODUCTION The Premier of South Australia, as Minister responsible for the Aboriginal Heritage Act 1988 (SA) (Act), has received an application for authorisation under the Act from Ancient Land Tours Pty Ltd (Applicant). The Applicant has sought the authorisation to enable it to conduct small-scale guided commercial tours inside designated areas of Koonalda Cave, and for minor modifications to be undertaken to facilitate safe access for, and the passage of, guided visitors (Proposal). These minor modifications include the installation and/or upgrading of anchor points and minor repairs to existing steps and ladders. The Applicant has sought authorisation under section 23 of the Act to authorise any inadvertent damage, disturbance and/or interference with Aboriginal sites, objects and/or ancestral remains that may occur as a result of the Proposal. The Act makes any such impacts to heritage an offence without formal authorisation from the Premier. Prior to considering whether to grant the authorisation, in accordance with section 13 of the Act, the Premier must understand and consider the views of a range of interested Aboriginal parties. The Department of the Premier and Cabinet - Aboriginal Affairs and Reconciliation (DPC-AAR) conducts this consultation on the Premier’s behalf, seeking the views of Traditional Owners, the State Aboriginal Heritage Committee (Committee) and other interested Aboriginal parties. ABOUT KOONALDA CAVE Koonalda Cave is an internationally recognised site of unique heritage significance. It is situated approximately 400 km west of Ceduna on the Nullarbor Plain in South Australia, and is located within the Nullarbor Wilderness Protection Area (see Figure 2 below). This area is managed by the Department for Environment and Water (DEW) in consultation with the Far West Coast Aboriginal Corporation (FWCAC) and the Nullarbor Parks Advisory Committee, which includes representatives from the Mirning community. Archaeological research conducted within Koonalda Cave in the 1950s yielded data that suggested that Aboriginal people were present in the cave at least 22,000 years ago. Prior to that, Aboriginal occupation of Australia had been dated to around 8,700 years ago. The cave contains significant Aboriginal cultural heritage features including well preserved, fragile and complex geometric markings, known as finger flutings, as well as engraved lines made by sharp tools. These markings are primarily located in the sections of the cave known as ‘The Ramparts’ and the ‘Art Chamber’ (discussed further below). In addition to these markings, the cave also contains stratified (layered) archaeological deposits; artefacts; stelae (standing stones) as well as evidence of Aboriginal flint quarrying and stone tool manufacture. Koonalda Cave also contains historic built features associated with early pastoral activities in the 1940s, including tracks, ladders, stairs and water pumps installed by the Gurney brothers, the pastoral leaseholders at the time. Koonalda Cave is listed on the Central Archive, maintained by DPC-AAR on behalf of the Premier, as Central Archive Site 4835-502. In 1990, Koonalda Cave was formally determined to be an Aboriginal site under the Act given its significance according to Aboriginal tradition, archaeology and anthropology. Accordingly, it was entered in the Register of Aboriginal Sites and Objects. Beyond its recognition under the Act, Koonalda Cave was also entered in the South Australian Heritage Register in 1993 and the National Heritage List in 2014. 2 In order to protect its heritage values, Koonalda Cave is closed to the public. A gate was installed to prevent unauthorised access; however, unauthorised visitation still occurs and continues to pose a threat to the heritage values of the cave. DEW advises that the current management regime (i.e. the locked gate to prevent access) is no longer accepted as best practice. Other management options for the cave are now being considered to ensure its long-term protection. Figure 2 - Location of Koonalda Cave in South Australia Layout of Koonalda Cave and relationship to the application area The entrance to Koonalda Cave is located at the bottom of a large doline (sinkhole) that measures approximately 80 metres in length, 50 metres in width and 25 metres in depth. Access to the cave’s entrance is typically achieved by descending to the bottom of the doline via a temporary ladder. When in use, this temporary ladder is anchored to a nearby vehicle to ensure the safety of visitors. An image of the Koonalda Cave doline is shown below in Figure 3. 3 Figure 3 - View looking down into the doline of Koonalda Cave (courtesy of Applicant) Overall, the Koonalda Cave network is estimated to be 1,640 metres in length, featuring several large chambers and three subterranean lakes. Upon descending to the floor of the cave, at a location known as ‘The Junction’, visitors can take two separate passages to progress further into the cave network. The ‘North West Passage’ contains the above-mentioned Aboriginal heritage features (i.e. engravings, evidence of flint quarrying etc.) as well as pits excavated by archaeologists from the 1950s to the 1970s. Conversely, the ‘Northern Passage’ primarily contains evidence of early pastoral activities dating back to the 1940s, such as a pump engine. Upon reaching the first subterranean lake within the cave, the Northern Passage turns west and is then referred to as the ‘West Passage’. Pre-established paths and tracks exist from the entrance of the cave to the archaeological excavation pits in the North West Passage, as well as part-way into the Northern Passage. The Applicant has sought an authorisation that covers the entirety of the Koonalda Cave doline (sinkhole); a 20 metre wide zone extending from the lip of the doline; and those areas inside Koonalda Cave (including floors, walls and ceilings) marked Zone A and Zone B shown in Figure 4 below. A larger version of Figure 4 is at Attachment 1. 4 Figure 4 - Plan of application area (image courtesy of P. Maynard 2013) 5 PROPOSAL DETAILS The Applicant The Applicant is a commercial tour business owned and managed by Dr Steve Milner, a speleologist (cave scientist) with experience in the Nullarbor region. The Applicant asserts itself to be the first tourism business to work with Mirning people, the Traditional Owners of the area. It proposes to provide tourism experiences that promote the Aboriginal culture and Country of the Nullarbor Plain. Further information regarding the Applicant’s business model can be found on the Applicant’s website at http://www.ancientlandtours.com/. Stakeholders The Applicant advises that it has developed the Proposal in consultation with the stakeholders listed below: The Far West Coast People, the native title holders for the land that encompasses the site. Their native title rights in respect of the cave are set out in the Far West Coast Parks Indigenous Land Use Agreement. FWCAC, which represents the native title rights of the Far West Coast People and contributes to co-management of the cave through its representation on the Nullarbor Parks Advisory Committee. The Applicant advises that it signed a Statement of Intent with FWCAC in June 2017 signalling a commitment to work together to develop a Nullarbor tourism product that includes caves, nature- and cultural-based interpretation. Nullarbor Parks Advisory Committee, which provides advice to the Minister for Environment and Water and to DEW in relation to co-management of the Nullarbor Wilderness Protection Area, which incorporates Koonalda Cave. The Nullarbor Parks Committee is a partnership between FWCAC, Mirning people and the South Australian Government. DEW, which leads the management and conservation of Koonalda Cave in light of advice from the Nullarbor Parks Advisory Committee. DEW regulates guided tours in wilderness protection areas generally through Commercial Tour Operator Licences. These licences, where granted, include conditions to ensure that permitted activities are safe, environmentally sustainable and consistent with wilderness protection objectives and any other management goals for the cave. Dr Keryn Walshe, an archaeologist engaged to provide advice to the Applicant and DEW regarding site conservation strategies of the cave. The Applicant advises that it has developed and maintains positive relationships with all of these stakeholders, with a view to ensuring appropriate long-term management of Koonalda Cave. 6 Proposal Overview The Applicant advises that it intends to conduct low impact, sustainable commercial tour
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