State of the Environment Report 2007
The 'conservation sector' in this report refers to those parts of WA's environment that form part of the National Reserve System and the National Representative System of Marine Protected Areas, or included in complementary off-reserve conservation areas managed for nature conservation. The conservation sector differs from the other sectors in this theme because it does not relate to extractive use of natural resources. The sector aims to protect biodiversity, including highly valued and representative ecosystems, native flora and fauna (especially rare and threatened species), and important landscapes in many instances.
The formal conservation reserve system has the highest levels of long-term (statutory) protection and their management is open to public accountability. This public terrestrial and marine protected area system is considered a major strategic component to conserving biodiversity in situ and meeting sustainability objectives. In WA, the following categories under the Conservation and Land Management Act 1984 are collectively considered part of the National Reserve System and National Representative System of Marine Protected Areas: national parks, nature reserves, conservation parks, marine parks, marine nature reserves and marine management areas. The management of formally reserved areas under the Act is the responsibility of Department of Environment and Conservation.
Informal (or off-reserve) conservation is provided by a range of instruments to complement the objectives of the formal conservation reserve system. These instruments generally do not meet the standards of the National Reserve System, but are also important for achieving conservation outcomes. They include private protected areas, Commonwealth Indigenous Protected Areas, covenanting schemes (such as Nature Conservation Covenants) and non-binding management agreements (such as Land for Wildlife and Woodland Watch). Some have a level of legal protection, e.g. private land covered under accredited nature conservation covenants. Other areas are managed for conservation purposes by local governments or State agencies other than Department of Environment and Conservation. Commonwealth Indigenous Protected Areas are set aside for biodiversity conservation and preservation of cultural heritage (e.g. the Ngaanyatjarra Indigenous Protected Area covers 9 812 900 ha and contains all of WA's Central Ranges bioregion, an area the size of Tasmania).
The State Sustainability Strategy outlines a vision for our natural resources by ensuring that they are '... conserved, protected, managed and used sustainably for the common good' (Government of Western Australia, 2003a, p. 108). The conservation sector objectives that reflect this vision aim to:
The benchmark of at least 15% reservation has been increasingly recognised for terrestrial bioregions (Department of Conservation and Land Management, 2003). It originates from the Nationally Agreed Criteria for the Establishment of a Comprehensive, Adequate and Representative Reserve System for Forests in Australia (ANZECC & MCFFA National Forest Policy Statement Implementation Sub-committee, 1997), but has been expanded to include other ecosystems as well as forests. The National Objectives and Targets for Biodiversity Conservation (Environment Australia, 2001b) required that a representative sample of each bioregion be protected by 2005 within the National Reserve System or network of Indigenous Protected Areas, or as private land managed for conservation under a conservation agreement. As of June 2005, only 20% of the terrestrial subregions (defined by the Interim Biogeographic Regionalisation of Australia) met the objective 15% or more of the area reserved; 11% of the subregions did not contain any formally reserved areas (Table TS2.1; Figure TS2.1). To date, no formal evaluation against the target has been undertaken.
The National Objectives and Targets for Biodiversity Conservation (Environment Australia, 2001b) requires that progress be made towards the establishment of a comprehensive, adequate and representative system of marine protected areas. However, no specific targets of percentage per marine region or ecosystem type have been set. The State government has developed the strategy New Horizons - The Way Ahead in Marine Conservation and Management to develop a marine conservation reserve system that manages the biological and recreational resources to take into account other essential and sometimes competitive activities (Government of Western Australia, 1998b). Most marine bioregions have a very low level of reservation with 65% of bioregions having no marine reservation (at June 2005) (Table TS2.1; Figure TS2.1). In contrast, the Ningaloo bioregion has the highest level of reservation at 82% of its area.
![Figure TS2.1: Per cent of terrestrial and marine subregions in Western Australia’s formal conservation reserve system, as of June 2005. [Data source: Department of Conservation and Land Management – Marine Conservation Reserves [ver. 2005], CALM managed land [ver. 2005]; Department of Environment and Heritage – IBRA [ver. 2005], IMCRA [ver. 1997]; Analysis: CALM; Presentation: EPA. Note: Figures in brackets show the area that will be reserved when outstanding Forest Management Plan reserve proposals and pastoral acquisitions are added.]](/site/files/images/Figure-TS2.1_Large.jpg)
At 30 June 2006, WA had a formal terrestrial conservation reserve system comprising national parks (97 parks, covering 5 593 536 ha), conservation parks (843 155 ha), nature reserves (10 860 832 ha) and miscellaneous conservation reserves (285 832 ha) under the Conservation and Land Management Act 1984. The total area of 17 583 355 ha equates to 6.95% of WA's land area. In addition, 5 265 201 ha of former pastoral leasehold land has been acquired for conservation reserves as at 30 June 2006 but has not yet been formally reserved. Under the Forest Management Plan 2004-2013, approximately 195 000 ha of land tenure was marked for addition to the conservation reserve system (Conservation Commission of Western Australia, 2004). Reservation of these areas will increase the total area of the formal conservation reserve system to around 22.85 million ha, or 9% of WA's land area. Furthermore, a total of more than 1.4 million ha of land in the rangelands has been identified for exclusion from pastoral leases when the leases expire in 2015, and will be incorporated in the formal conservation reserve system.
Principles for the formal conservation reserve system rely on 'representativeness', which requires different vegetation types to be distinguishable from each other and mapped to be included in the conservation reserve system. There are many different ways of mapping vegetation, but to be consistent with other states WA has adopted the National Vegetation Information System methods. A 'vegetation association' is a discrete identifiable set of species that occur together, and usually includes information about vegetation structure. As at June 2005, 19 vegetation associations had been extensively cleared to at least 90% of pre-European settlement occurrence, and were not represented in the formal conservation reserve system. This included seven associations with 2% or less remaining native vegetation. About 39% of vegetation associations were not protected in the formal conservation reserve system (Table TS2.2). Thirty-one per cent of vegetation associations had greater than 15% of their occurrence represented in the formal conservation reserve system.
The comprehensive, adequate and representative reservation system has been largely defined by vegetation and geological features. Although some protected areas contain inland water systems, these are not usually the focus of reservation. As a result, waterways and wetlands are often not reserved as whole functioning systems. The Natural Resource Management Ministerial Council (2004) aims to amend the National Reserve System scientific guidelines to ensure that freshwater ecosystems are appropriately incorporated into the formal conservation reserve system (with a particular focus on planning so that ecosystems reduced to less than 30% and less than 10% of original areas can be identified).
There are currently 12 internationally recognised Ramsar Convention listed wetland sites (covering 35 005 ha and including some marine areas) and 120 Directory of Important Wetlands of Australia (nationally-listed wetlands) in WA, but listing does not provide legal protection for the wetlands (unless included on reserved land). The Environmental Protection (Swan Coastal Plain lakes) Policy 1992 covers some wetlands on the Swan Coastal Plain due to specific conservation values. These have legal protection but are not formally reserved.
At 30 June 2005, WA's marine conservation reserve system comprised nine marine parks, two marine management areas and one marine nature reserve, covering a total area of around 1.54 million ha, or 12.2% of the area covered by marine bioregions. Currently, 2.5% of State marine waters are afforded the highest level of protection in marine nature reserves or sanctuary zones of marine parks, with other marine protected areas allowing other beneficial uses (Figure TS2.1).
Marine parks are created to protect natural features and aesthetic values while at the same time enabling sustainable recreational and commercial use where these activities do not compromise conservation values. There are four types of management zones applicable to marine parks: recreation zones, general use zones, sanctuary zones and special purpose zones. Sanctuary zones afford the highest level of protection for environmental values in marine parks, and only allow passive recreational uses consistent with the protection of those values.
There have been some significant achievements in the establishment of the marine conservation reserve system in WA, with the creation of the Jurien Bay Marine Park, the Montebello Islands Marine Park, the Barrow Island Marine Park and the State's first marine management areas, the Muiron Islands Marine Management Area and the Barrow Island Marine Management Area in 2003 and 2004. In 2005, two existing marine parks were also significantly extended: the southern portion of the Ningaloo Reef was added to the Ningaloo Marine Park and all of the surrounding State waters were added to the Rowley Shoals Marine Park, significantly increasing the ecological integrity of both reserves.
Of the 18 marine regions in WA, 11 have no marine reserves and a further two have less than 3% of their area reserved (Figure TS2.1). Planning is underway for the establishment of new marine conservation reserves for Dampier Archipelago to Cape Preston, the 'Capes' (Geographe Bay and Cape Leeuwin to Cape Naturaliste and Hardy Inlet), Walpole-Nornalup inlets and extensions to the Shark Bay and Shoalwater Islands marine parks. Gaps remain in the marine conservation reserve system, particularly in the Kimberley and South Coast regions. The Recherche Archipelago and Roebuck Bay have been identified as high priorities for future reservation consideration.
The Directions for the National Reserve System - A Partnership Approach (Natural Resource Management Ministerial Council, 2004) provides a common approach and framework to establish and manage the National Reserve System. It sets minimum standards which must be met for protected areas to be included in the National Reserve System, and targets for reservation. The National Reserve System Program under the Commonwealth's Natural Heritage Trust assists the states and territories, non-government organisations and private land managers to establish and manage Australia's National Reserve System through financial incentives and best practice standards for management.
Management plans and interim management guidelines form the basis for conservation practices and actions in the conservation reserve system. At present, WA has 56 current final management plans for the conservation estate covering 2 080 574 Ha (9% of the total conservation estate in WA). The approach to management has changed over time, and some areas have had management plans superseded by different management frameworks over time (e.g. Three Forest Region regional management plans were superseded by the Regional Forests Agreement process and then by the subsequent Forest Management Plan 2004-2013). In addition, there are 23 management plans in preparation, covering another 4 158 001 ha.
Western Australia's Forest Management Plan 2004-2013 (Conservation Commission of Western Australia, 2004) implements government policy for Protecting our Old-growth Forests (Australian Labor Party Western Australian Branch, 2001). It extends the conservation commitments made under the South West Regional Forest Agreement of 1999 and nominates further areas for inclusion in the formal conservation reserve system. The agreement was based on national criteria to reserve 15% of the pre-European forest ecosystems, increase reservation level for vulnerable ecosystems to 60% of remaining extent, and increase the reservation level of rare and endangered forest ecosystems to 100% of remaining extent.
The 2015 pastoral lease exclusion program has resulted in more than 1.4 million ha of land with high biodiversity conservation value in the rangelands being identified for addition to the conservation estate when pastoral leases expire on 30 June 2015. Early surrender of some of these pastoral leases has commenced. Bush Forever (Western Australian Planning Commission, 2000) identifies regionally significant bushland within the Perth metropolitan area of the Swan Coastal Plain. It aims to formally protect at least 10% of the 26 original vegetation complexes.
Two important objectives in the National Strategy for the Conservation of Australia's Biological Diversity (Department of Environment, Sport and Territories, 1996) are the need to strengthen biodiversity conservation outside of formal conservation areas and the need for bioregional planning. Areas managed for nature conservation on private land are most prevalent where land has been significantly modified, and where comprehensive, adequate and representative reserve system objectives cannot be met through formal reservation. Private land ownership is highest in the State's South West. Significantly, there has been continual growth of off-reserve conservation networks in the Swan Coastal Plain, south coast, northern agricultural and Wheatbelt regions. Other types of reserves, such as waterway reserves and roadside corridors that are not managed for the purpose of biodiversity conservation, may form important corridors between the formal conservation reserve system and off-reserve conservation areas.
Public interest in conservation on private land has grown over the last five years, and consequently the number of properties and areas subject to various types of agreements or where management advice is offered has increased over time (Table TS2.3). Nature conservation covenants and management agreements may provide incentives for management (such as fencing of significant areas), provide guidance on management and place conditions under nature conservation covenants that endure on the title of properties through changes in ownership. There are other notable programs (such as the National Trust of Australia's nature conservation program and the WWF-Australia Woodland Watch) that have also become popular in some areas.
Pressures are threats to the health and ecological integrity of conservation areas can be divided into two main types: those involving biological processes, and pressures that stem from institutional issues.
There are many specific threats that have been addressed elsewhere in this report. The spread of invasive species (environmental weeds, introduced animals, introduced marine species and diseases such as Phytophthora dieback) are biological pressures that disrupt ecological processes, resulting in a decline or loss of biodiversity. The decline in or loss of habitat values and ecosystem function can be due to a number of impacts including changed fire regimes, salinisation of land and water, off-site pollution and contamination, and soil erosion. Often these pressures are a legacy of former land uses that initiated degrading processes and these continue to impact on conservation values. Climate change impacts on biodiversity also represent a significant threat.
Current State Government policy through the Mining Act 1978 allows for exploration mining tenements and mining titles over some forms of existing conservation reserves. During economic booms, there is increased demand for natural resources in WA (e.g. minerals, petroleum, wood products, water supplies), which may impact on the State's biodiversity. Population growth also has potential to impact valuable biodiversity assets. As the Perth metropolitan region expands and becomes more consolidated, property reserved for conservation purposes becomes more economically valuable and more attractive for development. Irresponsible behaviour of people (such as illegal rubbish dumping, vandalism, poaching of native species and illegal land clearing activities) also affect conservation areas.
Benign neglect or inadequate management which fails to respond adequately to developing threats will result in further decline of conservation areas . Of the total conservation estate in WA, 9% is covered by a management plan. Agencies responsible for management of all conservation estate areas have the responsibility to maintain biodiversity values. However this can be very difficult when managing landscape level threats.
Society's failure in the past to adequately value biodiversity has resulted in its continued decline. The lack of biodiversity knowledge further impedes the identification of representative ecosystems and species for conservation. Small reserved areas in fragmented or largely modified landscapes are effectively islands subject to problems due to small and genetically isolated populations, and are vulnerable to environmental change. The long-term security of legal instruments such as conservation covenants and management agreements is largely untested. There is a lack of public scrutiny of contract formation, circumstances under which they can be dissolved and any potential action that could be taken if contravention of a covenant or management agreement occurs.
Legislation: The principal State legislation providing for the establishment and management of the public terrestrial and marine conservation reserve systems is the Conservation and Land Management Act 1984. Reserves are vested in the Conservation Commission (terrestrial) and the Marine Parks and Reserves Authority (marine). The Department of Environment and Conservation manages reserved lands and waters on behalf of the people of WA.
Formal conservation reserve system: has the highest levels of long-term (statutory) protection and its management is open to public accountability. This public terrestrial and marine protected area system is considered a major strategic component to conserve biodiversity in situ and in meeting sustainability objectives. The Department of Environment and Conservation is responsible for the design and establishment of the formal terrestrial and marine conservation reserve system in WA. The State's biological survey program provides a basis for the selection of areas for the terrestrial conservation reserve system. To date, about 25-30% of the State has been systematically assessed to determine biodiversity patterns and components, and conservation status. This is complemented by a number of local scale biological surveys and assessments.
Forest Management Plan 2004-2013: implements government policy for Protecting our Old-Growth Forests (Australian Labor Party Western Australian Branch, 2001). It extends the conservation commitments made under the South West Regional Forest Agreement of 1999 and nominates further areas for inclusion in the formal conservation reserve system.
Indigenous Protected Areas: The Indigenous Protected Areas Program is a Commonwealth initiative under the Natural Heritage Trust to develop agreements with Indigenous communities regarding the management of biodiversity and cultural assets on their lands, in order to further complement the formal conservation reserve system. The program helps develop Indigenous protected areas.
Environmental protection policies: The Environmental Protection (Swan Coastal Plain lakes) Policy 1992 was established to protect wetlands on public and private land in the Swan Coastal Plain. The Wetlands Conservation Policy (released in 1997) outlines principles and actions for wetland conservation and management. The policy is currently being reviewed and updated. In contrast to terrestrial vegetated areas, no national program exists to specifically develop a system of representative freshwater reserves.
Land for Wildlife: is a voluntary property registration scheme for landholders who wish to manage areas of wildlife habitat on their property. The program encourages and assists landholders to include nature conservation along with other land management objectives.
Nature Conservation Covenants: The Department of Environment and Conservation offers landowners the opportunity to use conservation covenants to protect the nature conservation values of their properties. It is a voluntary, legally binding document that has provisions restricting activities that might threaten the land's conservation values. Every conservation covenant is individually negotiated between the Department and the landowner, and aims to maintain the conservation values of the bushland whilst allowing for flexibility to reflect the landowner's wishes for the land.
Strategic plan for marine protected areas: The Strategic Plan of Action for the National Representative System of Marine Protected Areas: A Guide for action by Australian governments (ANZECC & MCFFA Task Force on Marine Protected Areas, 1999) outlines 34 actions to be implemented by the Commonwealth, state and territory governments to advance the establishment of marine protected areas.
The conservation of biodiversity is fundamental for the long term protection of the State's natural capital and the achievement of sustainability goals. Biodiversity and associated ecosystem services underpins many of the State's economic sectors, such as tourism, and the health and wellbeing of most Western Australians. Despite many of the environmental issues identified in this report, some parts of WA are considerably less-degraded than other parts of Australia and the world, so a significant opportunity exists to systematically consolidate them in the formal conservation reserve system for the benefit of current and future generations. Despite the proclamation of a number of conservation reserves in recent years, the target of more than 15% reservation of each terrestrial bioregion has only been met in 20% of terrestrial subregions. The reservation levels for marine ecosystems are also inadequate. Reservation alone does not ensure the protection of biodiversity in perpetuity - ongoing management and control of environmental threats is still necessary.
9.5 Accelerate the establishment of the formal conservation reserve system, particularly in priority terrestrial subregions and marine regions.
9.6 Progressively implement a protected area plan for each priority subregion and region, and provide adequate management.
