The management of coastal birds is undertaken by a variety of agencies, and efforts are directed towards protecting the birds themselves, preserving important habitats and addressing threatening processes. Throughout all of Queensland and the Marine Park, coastal birds are protected under the Queensland Nature Conservation Act 1992 (NC Act 1992), the Australian Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act 1999) and the Great Barrier Reef Marine Park Act 1975 (GBRMPA Act 1975). Under this legislation, it is illegal to harm, interfere with or disturb coastal birds except for traditional use.

The long-term conservation of coastal birds also requires an assessment of the status of individual species, identification of key threats, and actions to address these threats. In 2000, the Australian Government released the Action Plan for Australian Birds 2000 that provided an assessment of over 1300 bird vaireties. The Action Plan described the conservation status, key threats and existing conservation measures for a large number of species, and made recommendations for further actions. In the Great Barrier Reef, coastal bird risk assessments and management priorities are developed through the Day-to-Day Management Programme that coordinates these activities between the Great Barrier Reef Marine Park Authority (GBRMPA) and the QEPA. This includes the management of important coastal bird habitats.

Several coastal birds in the Great Barrier Reef are also listed as threatened species under the EPBC Act 1999 and the NC Act 1992 (see Condition – conservation status of coastal birds). Under the EBPC Act 1999, recovery plans may be developed to promote the recovery of these species. In 2005 the Department of the Environment and Heritage released a Recovery Plan for ten seabirds, including the Herald Petrel, and a recovery plan for the Yellow Chat (Dawson) is currently being prepared.

Protection of migratory species

Effective conservation of highly migratory species requires the cooperation of all the countries where the population occurs. Australia works with other countries to implement measures at an international level to complement national efforts to protect migratory birds. These arrangements are implemented through the following international agreements that commit the governments involved to protect the listed species from harvesting or trade, and to preserve their habitats:

The protection of migratory species such as the Bar-tailed Godwit requires international co-operation. Australia is a signatory to a number of conventions to protect migratory shorebirds along the East Asian-Australasian Flyway.

• Convention for Conservation of Migratory Species of Wild Animals (Bonn Convention)
• Ramsar Convention on wetland protection
• Asia Pacific Migratory Waterbird Conservation Strategy to conserve waterbirds and their habitats in the Asia-pacific region
• Bilateral migratory bird agreements with Japan and China.

A bilateral migratory bird agreement is also being developed with the Republic of Korea. Australia is also developing a multilateral partnership for the conservation and sustainable use of sites of international importance for migratory waterbirds across the East Asian-Australasian Flyway. The Flyway Partnership will build on the actions implemented under the Asia Pacific Migratory Waterbird Conservation Strategy that concludes at the end of 2006.

An Action Plan for the Conservation of Migratory Shorebirds in the East Asian-Australasian Flyway: 2001-2005, has also been developed to guide and coordinate the conservation of migratory birds throughout the region. The Department of the Environment and Heritage has also prepared a Wildlife Conservation Plan for Migratory Shorebirds to guide implementation of the Action Plan for the Conservation of Migratory Shorebirds in the East Asian-Australasian Flyway: 2001-2005 and future arrangements under the Flyway Partnership. Collectively, these plans and agreements provide a framework for the various countries along the East Asian-Australasian Flyway to conserve migratory birds and their habitats. These plans will also help to fulfill Australia’s obligations under the Japan-Australia Migratory Bird Agreement (JAMBA), the China-Australia Mirgatory Bird Agreement (CAMBA) and the Convention on Migratory Species.

Within Australia, species listed under the JAMBA and CAMBA, and sites listed under the Ramsar Convention are classed as matters of ‘National Environmental Significance’ and are protected under the EPBC Act 1999.

Commitments to the Ramsar Convention

Under the Ramsar Convention, individual countries are urged to conserve wetlands of international significance by committing to:

• Designate at least one site that meets the Ramsar criteria for inclusion in the List of Wetlands of International Importance
• Protect the ecological character of listed sites
• Include wetland conservation within their national land-use planning
• Establish nature reserves on wetlands and promote wetland training
• Consult with other Contracting Parties about the implementation of the Convention.

As of May 2006, there were 1609 Ramsar sites designated around the world, including 64 Australian Ramsar sites that cover 7.3 million hectares. There are two Ramsar sites adjacent to the Marine Park: Bowling Green Bay (35 000 hectares) and Shoalwater Bay/Corio Bay (239 100 hectares). Across Australia, Ramsar sites are listed as a matter of ‘National Environmental Significance’ under the EPBC Act 1999 that protects these sites from activities that could degrade their ecological values. The Bowling Green Bay Ramsar site is also a Queensland National Park, and the Australian Government and Queensland Government have implemented new measures to protect wetlands.

Response: natural pressures

Pressures such as cyclones, severe storms and El Niño events are natural events that cannot be ‘managed’ or ‘controlled’. Consequently, the management of bird populations and their respective habitats is focused on managing pressures arising from human activities.²³ Reducing human pressures helps to maintain the resilience of bird populations, thereby increasing their capacity to recover from natural pressures.

Nevertheless, managers need to have an understanding of how natural events are affecting bird populations to make informed decisions about managing human related pressures. The Day-to-Day Management Programme coordinates a Stranding Response Programme which provides a system for the public to report dead, sick and injured marine mammals and turtles. This system also alerts Marine Park managers to mass mortalities or sickness in coastal birds that could complement long-term monitoring programmes. 

Response: climate change

Climate change is a global issue that is beyond the scope of the GBRMPA to manage directly. At a national level, the Australian Government has committed $1.8 billion to address climate change issues including investment in climate change research and is implementing national programmes to reduce greenhouse gas emissions and support low emissions technology, renewable energy and energy efficiency initiatives. Within the Great Barrier Reef, the GBRMPA has forged a partnership with the Australian Greenhouse Office to develop and implement a Climate Change Response Programme. The programme aims to identify the potential impacts of climate change on the animals, plants and habitats of the Great Barrier Reef, to identify strategies to mitigate these impacts, and to develop a Climate Change Action Plan for the Great Barrier Reef.

The resilience of habitats and populations is a critical factor in determining how organisms such as coastal birds cope with climate change. Consequently, a key element of the GBRMPA’s response to climate change is to maintain the Great Barrier Reef’s resilience. This requires the reduction of human impacts and disturbances, and the preservation of the Great Barrier Reef’s biodiversity and ecological processes. Two major initiatives that will help achieve this include the rezoning of the Marine Park and the Reef Water Quality Protection Plan (Reef Plan).

In July 2004 a new Zoning Plan for the Marine Park came into effect. In line with the best available scientific advice, the new Zoning Plan provides high levels of protection for at least 20 per cent of every region of biodiversity in the Marine Park within a network of ‘no-take’ zones. This increased the area no-take ‘green’ zones from less than five per cent to some 33 per cent of the Marine Park.

The Reef Plan is a joint Australian Government and Queensland Government initiative designed to halt and reverse the decline of water quality entering the Great Barrier Reef in ten years. Achieving the Plan’s objectives will significantly reduce a key human pressure on the Great Barrier Reef ecosystem, particularly on the inshore habitats most affected by declining water quality. For more information on the water quality and the Reef Plan see Environmental status – water quality.

Response: habitat degradation and disturbance

Management of Great Barrier Reef islands and cays

The islands and cays of the Great Barrier Reef are managed under a variety of arrangements. Some islands are classified as Commonwealth Islands and are managed by the Australian Government as part of the Marine Park. Other islands come under the jurisdiction of the Queensland Government and are managed by the EPA. Islands or specific areas on them may be zoned as National Parks, unallocated crown land, freehold land, or may be leased.

Designation as a National Park means that the EPA can directly manage visitation, development and the activities of users. The level of access permitted to island National Parks varies. Some especially sensitive sites are closed and can only be accessed by people who have been granted permission to access the site for a specific purpose. Some islands have designated campsites that allow access by limited numbers of campers with camping permits, while other islands may have tourism resorts operating under lease arrangements. Some islands have no restrictions on access and numbers.

Most of the major seabird rookeries are provided with some form of protective tenure²⁸ that regulate visitation and development. The Cairns, Whitsunday and Hinchinbrook Plans of Management and State Management Plans for National Parks in the Capricorn Cays, Brook Islands and Family Islands include specific provisions to protect coastal birds such as setting minimum approach distances and operational restrictions on vessels and aircraft accessing significant bird sites. Important seabird rookeries may also have annual and seasonal closures as well as restrictions on visitor numbers. For example, access to the Brook Islands is prohibited during the summer months to protect the thousands of pied imperial pigeons that migrate to these islands from Papua New Guinea.

The GBRMPA has produced guidelines for managing visitation to seabird breeding islands  to inform site planning initiatives in areas that contain seabird rookeries. The GBRMPA has also developed Best Environmental Practices for reef visitors to minimise their impacts when observing birds or visiting nesting sites. A more detailed list of Responsible Reef Practices has also been developed to educate tourism industry staff about minimising the impacts of their operations on birds.

Management of land use and development in the Great Barrier Reef coast

The Great Barrier Reef coast includes rainforests and woodlands, and wetland habitats such as mangroves, billabongs, mud flats and swamps. Land use arrangements in these areas are managed by Queensland Government and local governments through agencies such as the Queensland Environmental Protection Agency (EPA) and the Queensland Department of Natural Resources and Mines. Collectively these agencies administer legislation that cover regional development planning, natural resource protection and the regulation of land use, water allocation and vegetation clearing. In recent times there have been significant changes in land management policies across Australia and Queensland. For example, the Queensland Vegetation Management Act 1999 will phase out broadscale clearing of remnant vegetation by December 2006, and in October 2005, the Queensland Government introduced the Wild Rivers Act 2005 to help preserve river systems in Queensland that are still relatively pristine.

The Australian Government Environment Protection and Biodiversity Conservation Act 1999 also contains provisions that help to protect coastal bird habitats. Under the Act, migratory species and Ramsar sites are protected as matters of “National Environmental Significance”.  Further, the Act provides protection for threatened species and ecological communities that may provide additional protection to habitats used by coastal birds. For example, land clearing has been listed as a Key Threatening Process and the Australian Government has committed support for habitat conservation, planning and land management at the State level.

Protecting wetland habitats

Wetlands are critical habitats for many coastal birds. Some wetlands are protected under international agreements and the Great Barrier Reef Coastal Wetlands Protection Programme will help to preserve these habitats.

Wetlands form important habitats for coastal birds and some wetland areas are protected under international agreements (see Response – Protection of migratory species). Healthy wetlands are also crucial to the healthy functioning of the Great Barrier Reef ecosystem. In October 2003, the Australian Government and Queensland Government released the Reef Water Quality Protection Plan (Reef Plan). Under the Reef Plan, three major wetlands programmes have been initaited:

• Great Barrier Reef Coastal Wetlands Protection Programme
• Queensland Wetlands Programme
• Queensland Natural Heritage Trust Wetlands Programme

These programmes will assist in achieving the goals of Reef Plan and will help conserve and restore wetland habitat. Key initiatives under these programmes include:

• Developing incentives for land holders to protect or restore wetlands
• Developing decision support systems for managers to prioritise wetland management
• Establishing a pilot programme to implement on-ground wetland protection
• Addressing knowledge gaps about wetlands
• Mapping and describing Queensland’s wetlands in a statewide inventory
• Developing Wetland Management Profiles to help land managers and communities preserve or restore wetlands in their areas.

Wetlands education and community awareness

The Australian Government and Queensland Government recognise the need to better educate the community about the value of wetlands and the need for their conservation. As part of the Queensland Wetlands Programme, the GBRMPA has undertaken a range of initiatives to help educate the community about the importance of wetlands, particularly to the Great Barrier Reef ecosystem. The initiatives include:

• A new wetlands exhibit at Reef HQ
• Interactive wetlands information kiosks
• Reef Beat poster series
• An interactive web quest for school students
• Wetlands curriculum unit for teachers.

During World Wetlands Day in February 2006, the Australian Government and Queensland Government jointly launched the interactive wetland information booths across the Queensland. A new wetlands exhibit has opened at Reef HQ.

For more information on land use and management in the Great Barrier Reef catchment, see Environmental status – water quality, and the GBRMPA Water Quality and Coastal Development website.

Response: introduced species, pest animals and plants

The management of introduced species and pests on islands in the Great Barrier Reef is coordinated through the Day-to-Day Management Programme, and implemented through the EPA which is the lead agency for pest management on islands. Priority islands for managing pest animals and plants include Curtis Island, the Capricorn-Bunker Group, Hinchinbrook Island, the Frankland islands, Orpheus Island, Magnetic Island, the Keppel Bay islands, Lindeman Island and Glouchester Island.

Eradication programmes have been implemented on some islands. On Lady Elliot Island the goats were eradicated between 1969-1970, leading to enhanced re-colonisation, growth and expansion of all trees within the island.² In 2006, the EPA implemented a programme to eradicte introduced foxes, horses, pigs and goats on Curtis Island.

Field operations in the Great Barrier Reef are coordinated through the Day-to-Day Management Programme. Pest eradication programmes have been carried out on some islands but on-going management is required to prevent the further introduction of pest species.

A monitoring programme has been established in the Capricorn-Bunker Group to document and monitor scale insect infestations and detect outbreaks on adjacent islands. A Tryon Island Revegetation Plan has been developed to restore the Pisonia forests through the translocation of already established flora from other islands, and controlling the African Big Headed Ants if required. The potential application of biological controls for African Big Headed Ants involving  commercially available wasp and ladybird predators is also being assessed.

The most effective option to reduce the spread of pest species is to minimise the opportunities for their translocation. This can be achieved by controling access to sites and maintaining the policy of minimal disturbance. Should a pest species be introduced to a site, early detection and eradication will be crucial as once a species is established it is often difficult and expensive to control.⁴

At a national level, the impacts of introduced pests such as pigs, foxes, feral cats and feral goats have been listed as Key Threatening Processes under the EPBC Act 1999. The Department of the Environment and Heritage has prepared Threat Abatement Plans for pigs, foxes, feral cats and goats. These plans outline the necessary research and management actions required to address these threats.

Response: oil spills

The management of shipping in the Great Barrier Reef involves a variety of agencies, articles of legislation and international agreements. These arrangements are designed to maximise shipping and navigational safety in order to reduce the risk of shipping incidents from occurring. The Great Barrier Reef has one of the world’s most comprehensive sets of shipping management systems and arrangements.

Nevertheless, a major oil spill could cause serious environmental damage. Consequently, managing agencies have prepared detailed contingency plans and stockpiled oil spill response equipment at various locations in order to quickly respond to any incidents. The EPA coordinates the response to oiled wildlife and District Oiled Wildlife Plans have been developed through the Day-to-Day Management Programme. A large number of EPA staff and volunteers have been trained to care for oiled wildlife and workshops have been conducted to help develop appropriate response procedures.

More detailed information about shipping and responses to shipping incidents is included in the chapter Management Status - Shipping and Oil Spills.

Response: garbage and marine debris

One of the most common sources of litter in the Great Barrier Reef is from ships and recreational vessels. It is illegal to dump litter into the Marine Park and under the International Convention for the Prevention of Pollution from Ships, the disposal of plastics into the sea is prohibited anywhere in the world. The convention also prohibits the dumping of garbage (for example food scraps) within 12 nautical miles from the nearest land. These restrictions apply to all vessels including recreational vessels, yachts, dinghies and fishing vessels. Offenders may be fined up to A$1.1 million for companies and up to $275 000 for individuals.

Under international agreements, Australian and Queensland law, it is illegal dump plastics or litter into the Marine Park.

Marine debris has been listed as a Key Threatening Process under the EPBC Act 1999 and a Threat Abatement Plan is being developed for marine industries to reduce the incidence of marine debris. For more information about shipping and marine debris in the Great Barrier Reef, see Management status – shipping and oil spills.

Litter can also enter the Marine Park from land-based sources such as drains and waterways. The management of waterways and urban runoff is regulated by the Queensland Government and local governments, and is outside the GBRMPA’s jurisdiction. Nevertheless, the GBRMPA is working with State and local governments on a wide range of water quality issues specifically designed to minimise the impacts of pollution and runoff from the land on the marine environment (see Environmental status – water quality). In recent years, some local councils and communities have taken steps to reduce the amount of litter washing into the Marine Park by installing gross pollutant traps in stormwater systems and encouraging residents to reduce the use of plastic bags. Some local councils such as Townsville City Council have implemented stormwater management plans and similar plans are being developed by other councils.

Some local governments such as Townsville City Council have installed storm water traps to reduce the amount of litter flowing into local waterways and the Great Barrier Reef.

The GBRMPA has produced Best Environmental Practices to educate reef users about the correct disposal of waste, and has implemented public education campaigns and education programmes such as the Reef Guardians Programme. These programmes encourage students and communities to take local action to reduce the amount of litter and pollution entering the Great Barrier Reef from their local areas.

Response: hunting

It is illegal to hunt birds in the Marine Park except for traditional use. Aboriginal and Torres Strait Islanders have strong cultural connections with the Great Barrier Reef and a long history of traditional use. The GBRMPA is working with Traditional Owners and other agencies to manage the traditional use of marine resources. In July 2004, a new system for managing traditional use of marine resources came into effect as part of the new zoning provisions for the Marine Park. Under the new system, some traditional resource use will continue to be ‘as of right’ while other traditional uses may be conducted in accordance with a Traditional Owner-developed and GBRMPA-accredited Traditional Use of Marine Resources Agreement (TUMRA), or with a permit.

Some hunting of migratory birds may occur outside of Australia. The protection of migratory shorebirds from hunting and trade is enacted through international conventions and agreements.

Response: fishing activities

The management of fisheries in the Marine Park is undertaken through joint management arrangements between the Australian Government and the Queensland Government. Under these arrangements, the GBRMPA manages use of the Marine Park through Zoning Plans while the Queensland Department of Primary Industries and Fisheries (DPI&F) is responsible for management of fisheries. In 2001, the DPI&F introduced the East Coast Trawl Fishery Management Plan which made it compulsory for trawlers to use bycatch reduction devices. Reducing bycatch levels will reduce the amount of surplus food available to some seabirds, and hence return their population size to more natural levels. The DPI&F have also produced guides for commercial and recreational anglers to reduce their imapcts on protected species including seabirds.

Long-line fishing is not permitted in the Marine Park. Nevertheless, long-line fishing has been listed as a Key Threatening Process under the EPBC Act 1999 that could potentially impact upon seabirds feeding in oceanic waters outside the Marine Park. The Department of the Environment and Heritage has developed a Threat Abatement Plan for the Incidental Catch (or bycatch) of Seabirds During Oceanic Longline Fishing Operations. Threat abatement plans provide for the research, management, and any other actions necessary to reduce the impact of these processes on threatened species or communities.

Response: research and monitoring

There is concern over the lack of long-term data on coastal bird populations. The variability in bird populations caused by movement patterns, seasonal migrations, climate and weather, make it very difficult to determine population estimates and trends, assess risks and gauge the effectiveness of conservation efforts. Consequently, long-term monitoring at many sites over many years is needed to identify population trends, assess risks and inform management decisions.

Seabird monitoring programmes are carried out by the EPA at key nesting sites through the Day-to-Day Management Programme. The data collected are archived in the Queensland Coastal Bird Atlas housed at the EPA in Rockhampton.³⁵ A Coastal Bird Monitoring Strategy has been prepared through the Day-to-Day Management Programme to identify the key information needs and coordinate bird monitoring in the Great Barrier Reef. The GBRMPA has also identified priority areas of research concerning coastal birds and their habitats through the GBRMPA Research Information System. Priority areas for research and monitoring include:

• Continued long-term monitoring of bird populations
• The causes of declines in seabird populations and breeding success and links to food supply, feeding areas and elevated seawater temperatures
• The impacts of introduced animals, plant and pest species on bird breeding success within the Great Barrier Reef
• The impacts of direct human disturbance on birds.

The Research Information System will help to communicate information needs to research community, and track the progress of research activities addressing these needs. 

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