DEFINING THE AESTHETIC VALUES OF THE GREAT BARRIER REEF Final Report February 2013 Prepared for DSEWPaC Warning The images used throughout this report may have copyright restrictions on their use and publication. They have been included in this research report as reference materials. Publication of this report without seeking copyright clearances may breach the copyright and/or reproduction restrictions places on these images by the copyright owner of the image. Disclaimer 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. While reasonable efforts have been made to ensure that the contents of this publication are factually correct, the Commonwealth does not accept responsibility for the accuracy or completeness of the contents, and shall not be liable for any loss or damage that may be occasioned directly or indirectly through the use of, or reliance on, the contents of this publication. Project Team: Chris Johnston, Project Manager Dr Anita Smith John Dyke Report Register This report register documents the development and issue of the report entitled Defining the aesthetic values of the Great Barrier Reef: Report 1 Methodology undertaken by Context Pty Ltd in accordance with our internal quality management system. Project Issue Notes/description Issue Date Issued to No. No. 1624 1 Report 1 Methodology 21/8/2012 Rachel Sanderson, Jane Ambrose 1624 2 Report 2 Aesthetic Values 22/11/2012 Rachel Sanderson, Jane Assessment Ambrose 1624 3 Report 3 Sensitivity analysis 17/12/2012 Rachel Sanderson, Jane Ambrose 1624 4 Final report (Draft 1) 21/12/2012 Rachel Sanderson, Jane Ambrose 1624 5 Final Report (inc Executive 6/03/2013 Rachel Sanderson, Jane Summary) Ambrose Context Pty Ltd 22 Merri Street, Brunswick 3056 Phone 03 9380 6933 Facsimile 03 9380 4066 Email [email protected] Web www.contextpl.com.au ii CONTENTS EXECUTIVE SUMMARY VII Overview vii Aims vii Project structure vii Framing the assessment – Section 2 viii Shaping a method – Section 3 ix Aesthetic values of the Great Barrier Reef World Heritage Area - Section 4 xi Applying the sensitivity and impact assessment method – Section 5 xiv Case studies – Section 6 xv Engaging communities in defining aesthetic values – Section 7 xvii Findings, conclusions and recommendations – Section 8 xvii 1 INTRODUCTION 1 1.1 Background 1 1.2 Purpose 1 1.3 Project plan 1 1.4 Project team 3 1.5 Acknowledgements 3 2 FRAMING THE ASSESSMENT OF AESTHETIC VALUES 4 2.1 Aesthetic values in the World Heritage system 4 2.1.1 Introduction 4 2.1.2 Changing approaches in the recognition of aesthetic values in the World Heritage system 5 2.1.3 Review of properties inscribed under Criterion vii (2003 – 2012) 8 2.1.4 Threats and impacts to aesthetic values 13 2.1.5 Key findings of the review 13 2.2 Aesthetic values assessment in heritage & landscape practice 17 2.2.1 Introduction 17 2.2.2 Aesthetics and landscape assessment 18 2.2.3 Exploring experiential preferences 23 2.2.4 Aesthetic values and heritage assessment 27 2.2.5 Aesthetic values, impact analysis and the National Heritage List 30 2.2.6 Key points for consideration 31 3 SHAPING A METHOD 32 3.1 Introduction 32 3.2 Developing a methodology to assess aesthetic values 32 3.2.1 Step 1 - Defining the scope and framework 32 3.2.2 Step 2 - Defining aesthetic values 38 3.3 Developing a methodology to assess sensitivity & impacts 46 3.3.1 Existing approaches 46 3.3.2 Assessing impacts on aesthetic values and attributes 51 iii 4 AESTHETIC VALUES OF THE GREAT BARRIER REEF WORLD HERITAGE AREA 52 4.1 Introduction 52 4.2 Previous aesthetic value assessments 52 4.3 Analysis of the evidence gathered in this project 53 4.3.1 History of perceptions of the Reef 53 4.3.2 Contemporary images 62 4.3.3 Selling the Reef: tourism websites 78 4.3.4 Visitor perceptions 83 4.3.5 Community perceptions 101 4.3.6 Expert perceptions 114 4.4 Results 115 4.4.1 Analysis of aesthetic values data 115 4.4.2 Definition of attributes 115 4.4.3 Extended description and conceptual mapping of RSoOUV 120 5 REFINING AND APPLYING SENSITIVITY IMPACT ASSESSMENT METHOD 136 5.1 Introduction 136 5.2 Refining the method 136 5.2.1 Step 1: Define the risk or exposure 136 5.2.2 Step 2: Assess the sensitivity 137 5.2.3 Step 3: Determine the potential impact 139 5.3 Applying the method 144 5.3.1 Activities 144 5.3.2 Assessing risk 145 Climate change & extreme weather 145 Marine tourism 147 Shipping 150 Commercial fishing 153 Recreational fishing 155 Recreation 157 Agriculture 158 Traditional use of marine resources 160 Urban development 162 Industrial development (including Ports) 165 Scientific studies 168 Defence 170 Aquaculture 171 Shark Control Program 173 5.3.3 Assessing sensitivity 174 5.3.4 Potential impact 175 5.4 Looking at an example 176 6 CASE STUDIES 179 6.1 Purpose 179 iv 6.2 Selection of the case studies 179 6.3 Steps 179 6.3.1 Identify environmental attributes 179 6.3.2 Identify experiential attributes 180 6.3.3 Undertake the sensitivity analysis 181 6.4 Case Study: Princess Charlotte Bay-Cape Melville 181 6.4.1 Overview 181 6.4.2 Description 181 6.4.3 Environmental attributes 182 6.4.4 Experiential attributes 186 6.4.5 Assessing sensitivity 188 7 ENGAGING COMMUNITIES IN DEFINING AESTHETIC VALUES 193 7.1 Introduction 193 7.2 Changing practice in the World Heritage system 193 7.3 Understanding the diversity of community-held values 195 7.4 GBR Traditional Owners & Indigenous communities 197 8 FINDINGS, CONCLUSIONS & RECOMMENDATIONS 200 8.1 Introduction 200 8.2 Findings on methods and processes 200 8.2.1 Literature review 200 8.2.2 Developing the methodology 201 8.2.3 Applying the methodology 202 8.3 Findings on aesthetic values 205 8.3.1 Aesthetic values of the Great Barrier Reek World Heritage Area 205 8.3.2 Findings on aesthetic values as applied in the World Heritage system 206 8.3.3 Engaging communities in defining aesthetic values 208 8.4 Specific recommendations 209 REFERENCES 212 Reports and published material 212 Image sources 217 Online sources (from Sections 4.3 and 4.4) 217 APPENDIX 1: GREAT BARRIER REEF STRATEGIC ASSESSMENT FACT SHEET 218 APPENDIX 2: GREAT BARRIER REEF RSoOUV – CRITERION vii 222 APPENDIX 3: DETAILS OF WORLD HERITAGE PROPERTIES INSCRIBED ON CRITERION vii FROM 2003 – 2012. 223 APPENDIX 4: LIST OF ‘SPECIAL PLACES’ 228 APPENDIX 5: ANALYSIS TABLES (RELEVANT TO SECTION 4.4.1) 241 APPENDIX 6: GBRMPA STAKEHOLDER WORKSHOP ‘AESTHETIC’ RESPONSES 253 v APPENDIX 7: EXAMPLES OF GREAT BARRIER REEF DOCUMENTARIES 262 vi EXECUTIVE SUMMARY EXECUTIVE SUMMARY Overview The Great Barrier Reef was declared a marine park in 1975, with the passing of Commonwealth legislation that also established the Great Barrier Reef Marine Park Authority (GBRMPA). In 1981 the Great Barrier Reef was added to the World Heritage List in recognition of its Outstanding Universal Value (OUV). Throughout this report the abbreviation GBR means the Great Barrier Reef World Heritage Area. In 2012, a monitoring mission established under the auspices of the World Heritage Committee visited the Great Barrier Reef to assess the state of conservation of the Great Barrier Reef World Heritage property and to contribute to the strategic assessment process (see Appendix 1). The mission report noted that the aesthetic values of the property are less well understood than other aspects of the property and recommended that ‘further work is needed in relation to identifying and documenting the attributes related to the aesthetic values of the property’ (IUCN 2012: 36). Their finding is consistent with the Lucas et al (1997) review of the OUV of the GBR, which noted the gap in knowledge of the aesthetic values of the GBR. (The Lucas et al report is discussed further in Section 4.1.) In response to the recommendations of the monitoring mission and the World Heritage Committee, the Australian Government has undertaken a number of actions. One has been to commission this project to consider the aesthetic values of the Great Barrier Reef World Heritage Area. This project was commissioned by the Commonwealth Department of Sustainability, Environment, Water, Population and Communities (DSEWPaC) in June 2012 and completed in December 2012, with the final report submitted in February 2013. The consultant team was led by Context Pty Ltd, and comprised Ms Chris Johnston, Dr Anita Smith, John Dyke and Jessie Briggs. Aims 1. Identify, define and assess the aesthetic values of the Great Barrier Reef World Heritage Area (GBR) in relation to the aesthetic component of Criterion vii - containing superlative natural phenomena or areas of exceptional natural beauty and aesthetic importance - by expanding the understanding of the relatively brief statements of aesthetic value in the Retrospective Statement of Outstanding Universal Value (RSoOUV); this is contained in Appendix 2 2. Define, and where possible map the attributes that embody these values 3. Consider the potential impacts of a set of defined actions on the attributes associated with the defined aesthetic values (sensitivity analysis) Project structure The core work in the project involved developing a draft methodology, then after review, refining and applying it. There were two elements to the methodology 1. Assessing aesthetic values 2. Sensitivity and impact assessment. The project was delivered through a series of three reports, and this final report reflects the thinking and steps taken in undertaking the project, and the original structure of project reporting.