Executive Summary

This assessment has examined the range of component activities identified as key elements of the existing measures to protect and manage the Great Barrier Reef. These range in scale from localised issues that affect only a small proportion of the total area (e.g. Defence) to others which have implications across all or most region (e.g. climate change, recreation, coastal development). No attempt has been made to weight these components, and performance assessments need to be interpreted in the context of these scale differences.

The varying scale and complexity of issues are outlined in Table 1.

The overall assessment results are summarised in Table 2. This report makes no recommendations for improvements as this was outside the scope of the assessment but through the text does seek to provide clear explanations for the grading judgements made. This emphasis in the text may, in some sections, appear to place undue focus on relatively minor negative attributes rather than on an overall positive result. However, the intent is simply to maximise the usefulness of the report for those considering management responses to the issues raised.

Management effectiveness challenges are evident for those issues which are broad in scale and complex socially, biophysically and jurisdictionally (i.e. climate change, coastal development, water quality, fishing). The corollary is that effectiveness is strongest on issues limited in scale or intensity and presenting only minor or moderate complexity (i.e. Defence and Scientific research). Modest effectiveness in management process and outputs for traditional use may only be sustained if shortcomings in management inputs are addressed.

Framework for the report

Management effectiveness evaluation is defined as the assessment of how well protected areas are being managed – primarily the extent to which they are protecting values and achieving goals and objectives. The report has used a management effectiveness evaluation framework that has been widely applied around the world. This framework focuses on six management elements (context, planning, inputs, processes, outputs, outcomes) and the links between them, to provide a comprehensive picture of management effectiveness for the ecosystem within the Great Barrier Reef Region. The assessment addresses the overall management of 12 activities/issues that occur within the Great Barrier Reef rather than assessing each individual agency‟s management of any particular issue or activity. It was also decided to consider some management activities extending outside the Great Barrier Reef Region.

Biodiversity conservation is the primary objective for much of the management action taken on the Great Barrier Reef through an array of programs and mechanisms rather a single clearly focused program. There is no comprehensive documentation of risks to biodiversity values and mitigation measures applied in the Great Barrier Reef Region. The limited identification of specific biodiversity goals and objectives in plans limits the capacity to track outputs and outcomes. Based on the available information most species are maintaining healthy populations; a small number are known to be suffering serious declines; most populations of threatened species have stabilised but are recovering weakly. However this conclusion must be tempered by the lack of reliable data on population trends for many species and changes to the extent and condition of many habitats.

Local and regional management actions are delivering positive results in terms on the condition of the Great Barrier Reef. However global influences such as climate change are likely to overshadow the effects of local efforts. Uncertainties about the precise nature and pace of change have led the management agencies to focus on enhancing capacity to adapt to change in both ecological and social systems. Climate change plans and strategies are in place. While objectives are generally clearly identified, the challenge remains to translate them into specific policies and measurable actions for on-ground management which can be consistently applied across jurisdictions.

The limited development of integrated regional and local plans for the coastal catchments indicates a shortcoming of the planning system and a major vulnerability for the Great Barrier Reef. The population of the Great Barrier Reef catchment is increasing rapidly without full consideration of implications for the sensitive environments downstream. The continuing degradation of coastal environments along much of the coast gives little confidence that the values of the Great Barrier Reef are being protected. Compliance monitoring and enforcement is limited, further constraining prospects for addressing the cumulative impacts of coastal development decisions. The Queensland State Coastal Plan does not reflect the international significance of the Great Barrier Reef and only three of nine regional coastal plans have been completed. The state plan and the regional plans which are in place generally recognise threats and risks relevant to the Great Barrier Reef but the risks such as loss of coastal wetlands and modification of floodplains are often not directly addressed or mitigated.

The limited area of operations and high level of performance in minimising the environmental impacts results in defence activities posing minimal threat to Great Barrier Reef values.

Protection of Great Barrier Reef values relevant to fishing is variable and progress towards application of best practice management across the whole fisheries spectrum is being made but not rapidly. Managers generally have a good understanding of commercial retained catch information, but lack significant information on the biology and stock distributions of some species, habitat values and broader cost/benefit analyses of the industry. The understanding of recreational fishing and the take by charter and Indigenous fishers is much more limited. Cumulative impacts on ecosystem values are poorly understood and hence not effectively addressed by management. Physical habitats are generally well protected by zoning plans but management systems are not adaptive enough to deal with the pace of change and compounding issues arising from climate change and water quality impacts.

Managers are well aware that they are looking after the largest World Heritage Area but more focused attention to cultural and historic heritage is needed if the full range of heritage values of the Great Barrier Reef is to be protected.

High levels of visitor satisfaction are documented as are significant economic benefits to local communities from marine-based tourism. Effective tourism planning and management systems are in place. The environmental sustainability of marine based tourism activities will depend on effectively addressing the implications of latent capacity in the permit system and improved documentation of the levels of specific activities undertaken in each location over time.

Shipping management is reducing the risk of incidents and environmental management practices in many ports appear to be limiting impacts of port activities. However there is evidence of demand for expansion of port capacity. This demand, coupled with the limited strategic planning to address the growth and long term impacts of ports and shipping activities on the Great Barrier Reef, may lead to impacts on environmental sustainability in the future.

Threats to Great Barrier Reef values from recreational use are generally being reduced through zoning plans, plans of management, policies and guidelines such as Responsible Reef Practices and day-to-day field operations. Concerns remain about issues such as the impacts of vessel anchorage and sewage discharges in sensitive areas.

Management of research in the Great Barrier Reef is targeted to reducing risks and threats to Great Barrier Reef values. The need to more effectively manage research through implementation of the Permits, Compliance and Management System (PCaMS) is recognised. Research activities appear to be environmentally sustainable and through the maintenance of effective partnerships with research institutions, are demonstrably enhancing community understanding and enjoyment of the Great Barrier Reef.

It is impossible for non-Indigenous evaluators working to a tight reporting time frame, and hence without capacity to consult widely with Indigenous communities, to do other than rely on publicly available documents and consultation with Indigenous liaison staff of managing agencies in order to assess, in very broad terms, the effectiveness of efforts to manage traditional use of marine resources by Indigenous people. Progress on engagement with Traditional Owners has been slow, but consultation processes are helping to reduce some of the major risks to Great Barrier Reef values. While there is very limited information on the take of dugong and turtles, the precautionary principle is applied in Traditional use of marine resources agreements (Traditional Use of Marine Resources Agreements), in an effort to ensure environmentally sustainability.

On the evidence provided for this assessment, it is unlikely that the goal of halting or reversing water quality decline by 2013 will be achieved to a level that would lead to the desired increase in ecosystem health and resilience. There has probably been little reduction in major risks to Great Barrier Reef values but this is uncertain because of the limitations of monitoring. Current activities in the coastal catchments are not demonstrably environmentally sustainable. Nor are they clearly economically sustainable, given the high value placed on the intact reef and the extent of the values jeopardised by poor water quality. While a comprehensive planning system is in place for addressing water quality, there are deficiencies in implementation and engagement with adjacent coastal land managers.

• Assessment of Management Effectiveness for the 2009 Great Barrier Reef Outlook Report. Download the full report (2.2Mb pdf)