NSW Marine Estate Management Strategy 2018–2028

1. Improving water quality and reducing litter 34

2. Delivering healthy coastal habitats with sustainable use and development 40

3. Planning for climate change 46

4. Protecting the Aboriginal cultural values of the marine estate 50

5. Reducing impacts on threatened and protected species 54

6. Ensuring sustainable fishing and aquaculture 60

7. Enabling safe and sustainable boating 65

8. Enhancing social, cultural and economic benefits 68

9. Delivering effective governance 71 How will we know if we are delivering on our vision? 74 APPENDIX Glossary of terms 76 3 Executive summary A healthy coast and sea, managed for the greatest wellbeing of the community, now and into the future.1 The NSW marine estate is a valuable natural asset to the people of NSW. It comprises tidal rivers and estuaries, the shoreline, submerged lands, offshore islands, and the waters of the NSW coast from the Queensland border to the Victorian border and out to three nautical miles offshore. The NSW Government’s broad vision for the NSW marine estate is: A healthy coast and sea, managed for the greatest wellbeing of the community, now and into the future1. Figure 1. The Authority’s five-step decision-making process2 To achieve this vision, the Marine Estate Management Authority (Authority) established a 1 Managing the NSW Marine Estate: Purpose, Underpinning Principles five-step decision-making process (Figure 1). and Priority Setting (MEMA 2013) 2 NSW Marine Estate Threat and Risk Assessment Report (WBM BMT for MEMA 2017) 4 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 This process started in 2014 when the Authority What are the priority threats? – outlines the priority began to work with the NSW community and experts, threats identified in the Marine Estate Community including the Marine Estate Expert Knowledge Panel Survey Final Report (the Community Survey)5 and (the Panel) to identify the benefits of the marine estate statewide TARA, the cumulative threats and how to the community – the environmental, social, cultural they link to other, related reforms. and economic values and benefits. In 2016–17, an How will priority threats be reduced? and evidence-based, statewide threat and risk assessment Management initiatives – outlines how the priority (statewide TARA) assessed benefits and identified the threats will be addressed by nine management threats to these benefits that are a priority for action.3 initiatives and a suite of proposed management This Strategy is the result of that process. It has also actions. considered the Authority’s ten management principles How will we know if we are delivering on our vision? and proposes a suite of initiatives and actions that are – summarises how management actions will be effective for addressing priority threats. A five-year monitored, reported and adapted over the ten-year health check will measure progress of how the initiatives life of the Strategy and track how they are meeting are performing against the key performance indicators their intended objectives to inform the five-year and whether the risk of the threats identified in 2017 health check. have changed. The Strategy is a key commitment of the NSW The nine management initiatives correspond to the Government in its response to the findings of the 2012 cumulative threat categories identified through the Independent Scientific Audit of Marine Parks in NSW statewide TARA process. This allows a holistic approach (the Audit).4 to dealing with the cumulative threats. It sets the overarching framework for the NSW The Strategy integrates with other coastal and marine Government to coordinate the management of the programs and reforms in NSW to achieve a more marine estate over the next decade in accordance with coordinated approach to management of the marine the objects of the Marine Estate Management Act 2014 estate by all levels of government. An Implementation and the NSW Government’s vision for the marine estate. Plan provides more detail: how management actions will The Strategy outlines how we can manage threats to the be implemented, agency and stakeholder responsibilities, environmental assets, as well as to the social, cultural timeframes, and key performance indicators. and economic benefits the community derives from the A five-year health check will review progress of marine estate. It identifies evidence-based management implementation, respond to research and monitoring priorities and sets policy directions to manage the outputs and consider new evidence and emerging marine estate as a single continuous system. threats that need a management response. It includes The Strategy uses the best available evidence, as well a midterm review of the statewide TARA. The Marine as input from scientists, the community, Aboriginal Integrated Monitoring Program (Monitoring Program) people, industry, government and non-government monitors condition and trend to inform how we are organisations. It is presented in the following sections: meeting key performance indicators and filling key knowledge gaps. Introduction – provides background on governance arrangements, the development of the Strategy, The Authority will guide the implementation of the including the statewide TARA, and the role of Strategy over ten years, with advice from the Panel, marine protected areas and other forms of spatial and will work closely with relevant management management. bodies, industry and community to ensure the vision for the marine estate is achieved. 3 Managing the NSW Marine Estate: Purpose, Underpinning Principles The Authority is confident the Strategy will guide the and Priority Setting (MEMA 2013) 4 Independent Scientific Audit of Marine Parks in NSW (Beeton et al. for management of the marine estate and achieve the MEMA 2012) vision of a healthy coast and sea, managed for the greatest 5 Marine Estate Community Survey Final Report (Sweeney Research for wellbeing of the community, now and into the future. MEMA 2014) 5 Introduction It’s your marine estate The NSW marine estate is The marine estate is one of the most significant natural owned by all people and has to resources in NSW. It includes around one million hectares of estuary and ocean, with more than 1,750 be managed for all people.6 kilometres of ocean coastline, 6,500 kilometres of estuarine and coastal lakes foreshores, 826 beaches, The many different uses of the marine estate can 44 offshore islands, and 185 estuaries and coastal lakes sometimes come into direct conflict with each other, (Figure 2). for example boating and swimming. Some activities can Over six million people live within 50 kilometres of the also present threats to the social, cultural and economic NSW coastline, including the people of eleven coastal benefits or environmental assets of the marine estate Aboriginal nations who are intimately connected to their with potential implications for the broader community. Land and Sea Country. For example, much of the water runoff from cities, industries and agriculture along the coast ends up The NSW community derives social, cultural, and in estuaries and can lead to reduced water quality. economic benefits from the marine estate, which are Other threats, including rising sea temperatures, ocean underpinned by good water quality, healthy habitats acidification and invasive species present longer-term and diverse and abundant marine life. It offers the concerns. opportunity for activities such as diving, swimming and fishing, and it provides a livelihood for many, such as commercial fishing and tourism businesses. Millions of domestic and international visitors enjoy the marine 6 Independent Scientific Audit of Marine Parks in NSW (Beeton et al. for estate, generating billions of dollars each year for NSW MEMA 2012) and the Australian economy. 6 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 BOX 1. WHAT IS THE MARINE ESTATE The Marine Estate Management Act 2014 defines the marine estate as: • the coastal waters of NSW within the meaning of Part 10 of the Interpretation Act 1987 • estuaries (being any part of a river whose level is periodically or intermittently affected by coastal tides) up to the highest astronomical tide • lakes, lagoons and other partially enclosed bodies of water that are permanently, periodically or intermittently open to the sea • coastal wetlands (including saltmarsh, mangroves and seagrass), lands immediately adjacent to, or in the immediate proximity of, the coastal waters of NSW that are subject to oceanic processes (including beaches, dunes, headlands and rock platforms) • any other place or thing declared by the regulations Australians are coastal people. The to be the marine estate but does not include any place or thing declared by the regulations not to be the marine estate. coast is our heritage and way of life and I wouldn’t be me without it.7 Community benefits ENVIRONMENTAL ASSETS AND OPPORTUNITIES and opportunities The Community Survey revealed that the marine estate’s In 2014, we asked 1,700 NSW residents about their most important asset to people is its natural beauty values and attitudes in relation to the marine estate. The and clean waters supporting a variety of unique and results of the survey were published in the Community abundant Australian marine life. The natural beauty of Survey. The survey revealed that the NSW community the marine estate was a key reason people gave for considers: wanting to live on or near the coast of NSW. In addition, commercial and recreational fishers recognised the • the health of the marine estate is a core value need to conserve and support marine life so that future • pollution of the marine estate is a major threat, generations will also be able to appreciate the marine whether from littering, spills or land-based runoff estate. • the marine estate is integral to the social and cultural The Community Survey also noted a range of wellbeing of the community opportunities to reduce water pollution through better • diversity and abundance of marine life and natural land management practices, rehabilitation of coastal beauty of the marine estate are key economic values habitats and wetlands, reducing marine litter, and for nature-based and regional tourism. targeted education programs. 7 Marine Estate Community Survey Final Report (Sweeney Research for MEMA 2014) 7 SOCIAL AND CULTURAL BENEFITS AND OPPORTUNITIES The marine estate is a central part of Australia’s heritage benefits to many coastal Aboriginal communities in and culture. It is no different in NSW, where the estate’s NSW in addition to its cultural value. natural beauty was identified as a major benefit, even Marine historic heritage, such as lighthouses, jetties, by those who don’t visit it often. It offers countless shipwrecks and other physical features or landscapes opportunities for the community to socialise with also provide valuable social, cultural and economic friends and family as well as a chance to engage with the benefits to the community through continued education natural world. Experiences in, and associations with, the and appreciation of important artefacts and places. marine estate through the generations has established a contemporary coastal and marine culture that crosses Reducing user conflict, improving public access, many sectors. For example, a surfing culture in NSW maintaining a safe environment and improving the is well recognised and is an iconic activity important water quality, natural beauty and cultural heritage were to a broad range of community and visitors. Similarly, identified in the Community Survey as opportunities to commercial and recreational fishing have a long history maintain the social and cultural benefits of the marine in NSW, with associated cultural values (tangible and estate. intangible) established through shared experiences, knowledge generation and a connection to nature. The marine estate also holds spiritual and physical Access to water gives us significance for Aboriginal people who live along our quality of life – for the Aboriginal man, the the coast and for those who live further afield. For thousands of years, Aboriginal people have relied on the natural resources provided by Sea Country, making it central to cultural practices and activities. Cultural community and the culture.8 fishing provides immense social, economic and health 8 Community representative’s response to community surveys, South East Region (2014) 8 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Figure 2. Map of the NSW marine estate 9 ECONOMIC BENEFITS AND OPPORTUNITIES The marine estate is an important economic resource • The NSW Office of Environment and Heritage (OEH) for the NSW community. It provides income for locals, is responsible for coastal and estuary management, particularly as a hub for international and domestic trade the NSW parks’ estate, the Beachwatch Water and tourism through its ports, nature-based tourism, Quality Program, wetland conservation, marine and seafood related industries. Sydney is the gateway to fauna (mammals, reptiles, shore and seabirds) and Australia and its iconic harbour supports many marine maritime heritage programs. OEH also administers industries, contributing to the NSW economy. The the NSW Environmental Trust, which contributes Community Survey identified economic opportunities to marine estate research and education, and it by addressing all forms of water pollution, promoting the funds organisations to run projects that enhance the beauty and biodiversity of the marine estate, improving environment of NSW. public access, and protecting the coastline from impacts • The NSW Environment Protection Authority (EPA) of climate change. is the primary environmental regulator in NSW, managing environmental issues such as air, water Governance of the and noise pollution, waste, sewage and septics, litter, resource recovery and pesticides. marine estate • Transport for NSW provides strategic advice for The Strategy is a first for NSW. It coordinates many ports, shipping, boating, boating infrastructure, access aspects of marine estate management under one and safety. framework. This involves all relevant NSW Government • Roads and Maritime Services (RMS) is a division agencies, local government, industry, stakeholders and of Transport for NSW. It is responsible for marine communities. safety and regulation of commercial and recreational The NSW Government agencies that manage the marine boating and for administering all land below the mean estate include: high water mark in Sydney Harbour, Botany Bay, Newcastle and Port Kembla Harbours. It manages • NSW Department of Industry, which includes Local moorings in NSW (other than in marine parks). Roads Land Services, Crown Lands and Water, Destination and Maritime Services have statutory responsibilities NSW, and the NSW Department of Primary for improving safety and protecting the environment Industries (DPI). It is responsible for biosecurity, on the navigable waterways in NSW, including the agriculture, fisheries, forestry policy, and related removal of litter from Sydney Harbour. education and research programs. DPI is also the lead agency for implementing the marine estate reforms NSW local government has a key role in implementing program and managing the State’s marine protected NSW coastal reforms, coastal management programs, areas. coastal and estuarine Crown land management, land use planning and development controls as well as • The NSW Department of Planning and Environment development and environmental compliance. (DPE) is responsible for the State’s land-use planning system. In 2014, the Authority asked local government to identify the top ten key challenges facing the marine estate over the next ten years. The results were consistent with 10 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 BOX 2. TEN UNDERPINNING PRINCIPLES FOR MARINE ESTATE MANAGEMENT9

1. Effective community engagement to identify and prioritise benefits and threats

2. Identification of priority actions will be based on concerns raised by community in the Community Survey, threat and risk assessment and included: 3. Values will be assigned to enable trade-off • marine pollution (including marine debris, litter and decisions between alternative uses of the marine microplastics) estate • management of access to foreshores and waterways 4. Best available information will be used in trade- off decisions, but judgement will still be required • catchment management and diffuse water pollution

5. The wellbeing of future generations will be • coastal development considered • climate change and coastal hazard management 6. Existing access arrangements will be respected • lack of resources to support local government 7. The precautionary principle will be applied management of the marine estate

8. Efficient and cost-effective management to • habitat and species protection and management achieve community outcomes • loss of aquatic habitat 9. Management decisions will be transparent and • managing access to natural resources adjust in response to new information • community engagement and education capacity. 10. Management performance will be measured, monitored and reported and information pursued The various management authorities have diverse to fill critical knowledge gaps. interests and responsibilities and, in some instances, overlap in jurisdictional boundaries. All levels of government – Commonwealth, State and local government – work closely together where needed The Authority’s role in so that legislation, policy and programs support marine estate management management of the marine estate in its entirety. Examples of close Commonwealth involvement include The NSW Government established the Authority in 2013 biosecurity, fisheries management, national security, to provide advice on policies, priorities and direction shipping and trade, climate change, marine parks, and for the NSW marine estate. The Authority comprises the management of threatened and protected species. an independent chair, the chair of the Panel, and the heads of the four agencies involved in managing the Industry, stakeholders, community and researchers also NSW marine estate: NSW Department of Industry contribute to the management of the marine estate (represented by Department of Primary Industries), through, for example, on-ground works projects to NSW Department of Planning and Environment, NSW rehabilitate coastal habitats and riparian vegetation; Office of Environment and Heritage, and Transport for formal research, education and citizen science NSW. The Authority provides advice to two Ministers: programs; volunteer work; advising government during the Minister for Primary Industries and Minister for the community engagement processes; working on advisory Environment. committees with natural resource managers; or simple activities such as picking up litter on daily walks. The NSW Government tasked the Authority to develop Details of the relevant governance structures and an overarching Strategy and to undertake specific management actions to deliver on the Strategy are in projects on the way to developing it. For each task, the Initiative 9 and the Implementation Plan. Authority has sought the advice of the Panel, whose members have social, economic and environmental expertise. 9 Managing the Marine Estate: Purpose, Underpinning Principles and Priority Setting (MEMA 2013) 11 The Strategy has been developed following ten The management options in Step 4 were developed in principles developed by the Authority (Box 2) and the accordance with the four stages of the Guidelines for five-step decision-making process (Figure 1), to achieve Assessing Management Options for the NSW Marine Estate the Authority’s vision for the NSW marine estate. (MEMA 2017). In summary, these stages are: Stage A: Develop guiding management objectives THE VISION FOR THE MARINE ESTATE for priority threats and management opportunities. This involved working with all stakeholder agencies to A healthy coast and sea, consider the scope and priority of the threats. managed for the greatest Stage B: Assess current management settings (against guiding management objectives) and review the risk wellbeing of the community, against any existing or proposed initiatives or reforms. This assessment identified where new management may now and into the future. be needed or resources better allocated. Stage C: Identify other ways of addressing the proposed The Authority’s five-step decision-making process (see guiding management objectives, for example by Figure 1) is summarised as follows: modifying existing tools, to reduce priority threats, and cost-effectively achieve the objectives. Community STEP 1 Find out what benefits the community derives consultation on the draft Strategy identified community from the marine estate. and stakeholder views on proposed management actions STEP 2 Identify the threats and risks to those benefits or initiatives, and ways to improve the Strategy. based on expert advice and community views. Stage D: Assess management options. This involved: STEP 3 Assess current management to see where • identifying the expected effective change in the level action is needed to reduce priority threats and of risk posed by the threat to enhance community benefits. • considering the expected positive and negative STEP 4 Develop management options that will reduce changes to the community across the environmental the priority threats and risks and that are cost- assets and social, cultural and economic benefits (net effective. community benefits) STEP 5 Be accountable. Monitor, evaluate and report • considering effectiveness in addressing risk and net on the effectiveness of the management benefits against cost. options to ensure they are working. The aim of this process has been to ensure that management actions are robust, evidence-based and transparent and ensure delivery on the vision for the marine estate. 12 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 BOX 3. OBJECTS OF THE MARINE ESTATE MANAGEMENT ACT 2014 (a) To provide for the management of the marine estate of NSW consistent with the principles of ecologically sustainable development in a manner Why is a Strategy needed? that: (i) promotes a biologically diverse, healthy and The Strategy is designed to reduce the major threats to productive marine estate, and the NSW marine estate and provides for the range of multiple uses and associated benefits that contribute to (ii) facilitates: the wellbeing of the NSW community now and into the – economic opportunities for the people of future. NSW, including opportunities for regional communities, and This ten-year, overarching Strategy ensures that management decisions for the marine estate are – the cultural, social and recreational use of the coordinated, strategic, transparent, and evidence- marine estate, and based. It sets the stage for the fundamental shift in – the maintenance of ecosystem integrity, and management needed to address the challenges from an increasing population and the range of associated threats – the use of the marine estate for scientific to the marine estate. research and education, Specifically, this Strategy: (b) to promote the coordination of the exercise, by public authorities, of functions in relation to the • outlines the environmental assets and social, cultural marine estate, and economic benefits identified by the NSW community (c) to provide for the declaration and management of a • identifies the priority threats to those benefits comprehensive system of marine parks and aquatic reserves. • outlines initiatives and actions to manage priority threats • identifies how the Strategy links with other related programs reforms. It is part of the NSW Government’s response to the Audit: to establish a coordinated, holistic, triple-bottom- line approach to the management of the NSW marine estate that aims to balance the environmental, social, cultural and economic benefits derived from the marine estate. It includes new legislation (the Marine Estate Management Act 2014) and a threat and risk assessment approach with the guidance of independent social, economic and environmental experts on the Panel. The Strategy articulates how the Authority’s vision and management priorities will be delivered over the next ten years under the objects of the Marine Estate Management Act 2014 (Box 3). The Strategy uses some new terms that will be commonplace in marine estate communications. Key terms are included in Box 4, with a full glossary in

Appendix 1. 13 BOX 4. KEY TERMINOLOGY USED IN THE STRATEGY An asset is a physical feature of the marine estate (e.g. environmental assets include beaches or rocky shores; cultural assets such as structures or places that contribute to cultural identity; or infrastructure such as jetties installed for people to use and interact with the marine estate). A benefit is anything that contributes to the wellbeing of the community (social, cultural, economic or environmental) such as swimming at the beach or operating a marine related business. A risk is the chance of something happening that will have an impact on the achievement of social, cultural, economic or environmental objectives. A stressor is the consequence of an activity (e.g. water pollution) that causes an effect on an environmental asset (e.g. clean water) or the associated social, cultural or economic benefit (e.g. ability to swim at the beach). A threat is a broad activity, event or process that poses a potential level of risk to an environmental Marine protected areas asset or social, cultural or economic benefit (e.g. and other forms of spatial stormwater). Threats often affect multiple assets and management benefits. Similarly, an asset or benefit can be affected by multiple threats. The Authority released a marine protected areas policy (MPA policy) statement in October 2017. 10 It states that, A threat and risk assessment (TARA) is a process that depending on their design, marine protected areas can: identifies, assesses and prioritises threats and their associated risk to the marine estate. It also highlights • conserve and enhance ecological function and values areas where information is lacking and research is of marine ecosystems needed. • maintain biodiversity in the marine estate • protect unique habitats and species of high The three management regions are: conservation value, including rare, threatened or • the northern region – extends from the depleted species Queensland border down to Stockton Beach • conserve indirect economic benefits (intrinsic and • the central region – extends from bequest benefits) in particular areas of the marine Stockton Beach to Shellharbour estate • conserve and protect Aboriginal cultural, geological • the southern region – extends from and heritage sites Shellharbour to the Victorian border. • provide economic opportunities for nature-based A trade-off is the relinquishment of one benefit or tourism and recreational activity value for another that is regarded as more desirable • help increase ecosystem resilience by limiting or of greater importance. extraction and use 10 Marine protected areas within the NSW marine estate – their role and purpose (MEMA 2017) 14 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 • develop community and education opportunities to discover and interact with the marine environment • address resource use conflicts by providing designated areas for specific uses such as areas available for recreational fishing and no-take areas for passive users such as snorkellers, divers and swimmers • provide reference areas for research or monitoring based on the absence of all or selected extractive activities • assist in increasing resilience of biodiversity and habitats to climate change depending on the spatial extent, location and accompanying management regulations within the marine protected area being appropriate to the task • show increased size and abundance of commonly fished species inside no-take zones, which is evidence for a direct benefit to non-extractive recreation in those areas and possible benefit to fisheries outside these zones. The MPA policy states that marine protected areas are an important management tool for addressing social, cultural, economic and environmental threats, typically those that can be regulated within the boundary of the marine protected area itself (such as harvesting, wildlife interactions and disturbance, and resource- use conflict). Marine protected areas are less effective in dealing with off-site impacts such as land-based runoff, water pollution, litter and marine debris, erosion, marine pests, overcrowding, and legacy issues (including contamination, habitat loss, and reclamation). NSW has an established network of marine protected areas, declared under the Marine Estate Management Act 2014 and managed by the Department of Primary Industries. These marine protected areas include: • 12 aquatic reserves – which cover around 2,000 hectares of the NSW marine estate • six multiple-use marine parks – which cover around one-third (approximately 345,000 hectares) of the NSW marine estate. 15 Around 20,000 hectares of estuarine and oceanic conserve Aboriginal cultural heritage and to support habitats, areas below the astronomic high tide level, are access and use of the marine estate for cultural within national parks or nature reserves declared under purposes. the National Parks and Wildlife Act 1974 and these areas Spatial management tools may be used separately, or in are managed by the National Parks and Wildlife Service. combination, to reduce threats to biodiversity or to the The six multiple-use marine parks established in NSW community’s use and enjoyment at individual sites and, commenced with the Solitary Islands Marine Park in if coordinated across a group of sites, across the marine northern NSW in 1991 (initially as a marine reserve). estate. Marine parks are located in each marine bioregion in The NSW Government is committed to maintaining the NSW, with the exception of the Hawkesbury Shelf existing system of marine parks in NSW and improving marine bioregion and Twofold Shelf marine bioregion. the holistic management of the protected area network, Ten aquatic reserves are in the Hawkesbury Shelf marine guided by the objects and requirements of the Marine bioregion. Estate Management Act 2014. The Government is assessing options for enhancing the protection of SPATIAL MANAGEMENT biodiversity in the Hawkesbury and Twofold Shelf marine Site-based management tools that promote, regulate or bioregions of NSW, which have been identified in the control activities at different places in the marine estate Audit as current gaps. Spatial management has been are called ‘spatial management’. These tools include recommended to address identified social, cultural, marine protected areas (aquatic reserves, marine parks), economic and environmental threats in the Hawkesbury recreational fishing havens, fishing closures or fishing Shelf marine bioregion.11 An assessment of mechanisms rules, boating controls to limit speeds or anchoring, or to enhance conservation of marine biodiversity in the restricted access for vehicles, dogs or other activities Twofold Shelf marine bioregion is pending. to particular beaches. These tools can also be used to 11 The Hawkesbury Shelf Marine Bioregion Threat and Risk Assessment Report (WBM BMT for MEMA 2015) 16 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 BOX 5. MARINE PROTECTED AREA AND BIOREGIONAL ASSESSMENT COMMITMENTS 1. Develop and pilot a new approach to management The Authority will oversee the development of statutory planning at Batemans Marine Park and Solitary management plans for the effective management of each Islands Marine Park. marine park and aquatic reserve (or reserve network). Management plans for each park and for one or more 2. Prepare management plans for remaining marine aquatic reserves, informed by the Authority’s five-step parks in accordance with statutory requirements decision-making process, will replace the current zoning and make recommendations to update rules and and operational plans. Each management plan will improve management, where needed. clearly document management objectives and actions 3. Explore and implement mechanisms to enhance to address priority threats. A stronger emphasis on conservation of marine biodiversity while monitoring performance and assessment of management balancing community outcomes in the Hawkesbury actions will be a key feature of this approach. Shelf marine bioregion (Newcastle – Sydney – As with other regulatory tools, any proposals for spatial Wollongong). management will be evaluated against other possible 4. Explore mechanisms to enhance conservation of options to determine the most effective option for marine biodiversity while balancing community maximising community benefits and reducing the risk outcomes in the Twofold Shelf marine bioregion level of the threat, including the level of cumulative (far south coast of NSW). threat. Community engagement is a critical component 5. Investigate and apply the use of spatial of this process. management tools, in consultation with the The NSW Government’s commitments in relation to community, that are most effective at reducing marine protected areas and bioregional assessments over priority threats at a bioregion and site-based scale. the ten-year life of the Strategy are outlined in Box 5. 17 What are the priority threats? Priority threats to be reduced Priority threats to the NSW marine estate have been MARINE ESTATE COMMUNITY SURVEY RESULTS identified through several community engagement The Community Survey identified a range of views about processes and an evidence-based review of more than the marine estate. These included perceived threats to 1,000 scientific papers and reports. Most notably, the environment, as well as threats to the social, cultural the following reports provide a comprehensive and economic benefits derived from the marine estate. assessment of threats and risks to the marine The three highest priority threats were seen to be: estate through the lens of community, stakeholders, • littering and marine debris scientists, industry and natural resource managers: • oil and chemical spills • Marine Estate Community Survey Final Report (2014) – • water pollution from sediment or runoff. the Community Survey Threats to social benefits included antisocial behaviour • Hawkesbury Shelf Marine Bioregion Threat and Risk as well as the potential loss of appeal due to pollution Assessment Report (2016) – the Hawkesbury Shelf or littering. Overcrowding, conflicting use, and lack of TARA public access were also recognised as potential social • NSW Marine Estate Threat and Risk Assessment Report threats. Perceived threats to economic viability were (2017) – the statewide TARA. associated with water pollution, loss of natural areas, and increasing costs of accessing the marine estate. 18 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 HAWKESBURY SHELF MARINE STATEWIDE TARA RESULTS BIOREGION TARA RESULTS An evidence-based process to identify and prioritise The Hawkesbury Shelf TARA was completed in 2015. statewide threats started in 2016. Threats were The assessment found that the highest priority threats recognised as a statewide priority if they were assigned to the estuaries, coast and ocean in the State’s central a risk level of moderate or high in all three regions region were: (northern, central and southern, see Figure 2). Feedback • climate change from consultation on the draft statewide TARA12 was considered when finalising the statewide TARA in 2017. • urban stormwater discharge • clearing foreshore vegetation The statewide TARA found that the greatest threats to the environment were related to: • dredging and excavation activities • shipping. • urban and rural discharges or runoff • climate change The highest priority threats to social, cultural and economic benefits included: • disturbance to habitat and species from estuarine entrance modification, harbour maintenance, • governance issues associated with government foreshore development, drainage, and other works regulations (Table 1). • access to the marine estate Threats to species, populations and communities that • climate change are listed as protected or threatened under the Fisheries • a range of activities (some conflicting). Management Act 1994 (FMA) and the Biodiversity The results of the Hawkesbury Shelf TARA informed Conservation Act 2016 (BCA) were also identified. the statewide TARA. Some risk levels in the statewide Estuaries were at a higher risk than the coast and ocean, TARA central region were influenced by this assessment. primarily due to the high levels of use in estuaries This process also resulted in the reframing of the coupled with the reduced resilience to threats in a statewide social, cultural and economic TARA through confined area relative to the much larger offshore areas. a community wellbeing lens rather than a sector-based approach: the benefits and costs to the community The greatest threats to the social, cultural and economic as a whole were considered rather than the benefits benefits were primarily associated with water pollution to a particular user group, sector or industry. and a general lack of social, cultural and economic information, lack of compliance with regulations, and lack of access to the marine estate (Table 2). The statewide TARA outcomes in 2017 draw broadly similar conclusions to the results of the Community Survey in 2014: that pollution, habitat disturbance and climate change are key threats to the NSW marine estate. Similarly, pollution, antisocial behaviour, climate change and information gaps have been identified as key threats to the social, cultural and economic benefits derived from the marine estate. 12 NSW Marine Estate Threat and Risk Assessment Report – Draft Report (WBM BMT for MEMA 2016) 19 LEGEND Identified as: TABLE 1. Statewide priority threats to Moderate Risk Moderate-High Risk e estuaries ENVIRONMENTAL assets (A mix of moderate and high risk levels High Risk cm coast & marine in the three regions statewide) Threatened Clean Estuarine & marine habitats, assemblages & associated biota & protected waters species Beaches & mudflats Fish assemblages Species protected ENVIRONMENTAL Shallow reefs Estuarine & Rocky shores Species & Shallow soft Planktonic Deep reefs Deep soft Saltmarsh Mangrove (harvest & bycatch) communities ocean waters Seagrass Beaches under BCA protected sediments sediments assemblages under FMA ACTIVITY/THREAT ASSET 1. Urban stormwater discharge e e e e e cm e e e e e 2. Estuary entrance modifications e e e e e cm e e e cm 3. Agricultural diffuse-source e e e e e e e e e runoff 4. Clearing riparian & adjacent habitat including wetland e e e e e e drainage 5. Climate change (over the next e e e cm e 20 yrs) cm cm 6. Modified freshwater flows e e e e e e e e 7. Foreshore development e e e cm e cm 8. Recreation & tourism boating & e e e e e e boating infrastructure 9. Navigation & entrance management & modification, e e e e e e including harbour maintenance 10. Sewage effluent & septic runoff e e e e e 11. Stock grazing of riparian & marine vegetation in estuaries e e e e 12. Four-wheel driving e e e e 13. Recreational fishing – boat- e cm based line & trap fishing cm 14. Passive recreational use – e e swimming, surfing & dog walking cm 15. Recreational fishing – shore- e based line & trap fishing cm 16. Beach nourishment & grooming e cm 17. Commercial fishing – cm ocean trawl 18. Commercial fishing – cm ocean trap & line 19. Commercial fishing – e estuary general 20. Deliberate introduction of e pests & weeds cm 21. Shipping – small commercial cm vessels 22. Oyster aquaculture e e 23. Commercial fishing – ocean haul cm 24. Recreational fishing – cm hand gathering 25. Whale & dolphin watching cm 20 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 TABLE 2. Statewide priority threats to LEGEND Identified as: SOCIAL, CULTURAL and ECONOMIC benefits Moderate Risk High Risk Cultural Social benefits Economic benefits benefits SOCIAL, CULTURAL Participation – Enjoyment – Cultural heritage Participation – Indirect values & ECONOMIC Enjoyment - Direct values socialising & sense Viability of safety, health & biodiversity & (individual wellbeing of community beauty consumptive use & use businesses enjoyment) THREAT/STRESSOR BENEFITS 1. Water pollution on environmental values – urban stormwater discharge 2. Water pollution on environmental values – agricultural diffuse-source runoff 3. Water pollution on environmental values – litter, waste, debris & microplastics 4. Inadequate social & economic information 5. Lack of compliance with regulations (users) or lack of compliance effort (agencies) 6. Limited or lack of access infrastructure in the marine estate 7. Reductions in abundance of species & trophic levels 8. Antisocial behaviour & unsafe practices 9. Climate change over the next 20 years 10. Loss of public access 11. Inadequate, inefficient regulation or overregulation 12. Pests & disease 13. Sediment contamination 14. Overcrowding & congestion 15. Conflict over resource-use access 16. Habitat disturbance 17. Loss or decline in marine industries 18. Seafood contamination 19. Modified hydrology, hydraulics & flow regimes 20. Water pollution of environmental values – septic runoff, point-source pollution & sewage overflows 21. Wildlife disturbance (shorebirds, turtles, whales) – e.g. by dog walkers, four-wheel drives, & vessels 22. Lack of community awareness of the marine estate & associated threats & benefits 23. Lack of, or ineffective community engagement or participation in, governance 24. Other water pollution & contamination affecting human health & safety 25. Excessive or illegal extraction 21 REGIONAL AND LOCAL THREATS Some threats were identified specifically at a regional stressors that result in additive or interactive effects. or local scale in the statewide TARA. Although The process identified five cumulative threat categories: management actions are focused on statewide threats, • Multiple threats to estuarine water quality – the localised threats are included in the Strategy if they cumulative impact of agricultural runoff, urban were reported from all three regions. For example, stormwater, sediment contamination and other threats disturbance of threatened or protected species on should be managed together to address the water beaches can be very localised, as some activities are quality of NSW estuaries (see Initiative 1). permitted on certain beaches only, but if they occur • Climate change – multiple stressors are grouped on beaches in all three regions and are deemed a under the threat of climate change and these will moderate or high risk they meet the criteria for a have an increasing impact on community benefits management response in a statewide context. over the next 50 years. For example, sea level rise Other regional or localised threats that were deemed and increased storm activity can affect coastal moderate or high in only one or two regions and that environmental and physical assets. The imperative is have not triggered a statewide response have not been to take practical adaptation and resilience-building directly addressed in this Strategy. They are identified actions now rather than waiting for the impact (see for further consideration in a regional context; such Initiative 3). as, in the development of new management plans for • Multiple threats to Aboriginal cultural heritage – marine parks, coastal management programs or other the cumulative impacts of pollution, loss of habitat, regionally focused strategies or plans. These include depletion of stocks, conflict over resources, lack of threats to the central region from large and small Aboriginal representation in decision-making and commercial vessels and related port activities; sewage other threats collectively impact upon Aboriginal effluent and septic runoff; service infrastructure (such values derived from Land and Sea Country (see as pipes and cables); industrial and thermal discharges Initiative 4). and sediment contamination. In the northern and • Multiple threats to threatened and protected species central regions estuary prawn trawl, recreational hand – the cumulative impacts associated with disturbance gathering and four-wheel driving on beaches are or interactions with threatened and protected species identified as regional threats and sea urchin, turban from fishing, vessels, recreational and land-based shell and abalone harvest in the southern region. activities as well as climate change (see Initiative 5). • Multiple threats to fish assemblages – the cumulative CUMULATIVE THREATS impact of fishing (commercial, recreational, cultural A cumulative threat is the threat from the combined (or fishing) on fish assemblages and trophic structures cumulative) effect of numerous threats and stressors. (see Initiative 6). Management initiatives to address cumulative threats are particularly important due to the additive effect of their The breadth of these categories suggests that most impacts. environmental assets and processes are influenced by cumulative threats. A specific management initiative In the statewide TARA, environmental assets or social addresses each of the cumulative threat categories benefits were identified as being subject to cumulative (Figure 4), with links to other initiatives. threats if they were at risk from a large number of The cumulative threat category ‘multiple threats to estuarine water quality’ has been included in a broader water quality (Initiative 1) that includes estuarine and marine water quality management actions. It is also linked closely to other initiatives including Delivering healthy coastal habitats with sustainable use and development (Initiative 2) and Reducing impacts on threatened and protected species (Initiative 5). 22 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Figure 4. Mapping management initiatives with cumulative risk categories EMERGING THREATS AND KNOWLEDGE GAPS The NSW community has raised concerns about perceived emerging threats or unassessed threats that had not yet been identified as a statewide threat during the statewide TARA process. These include potential threats to marine historic heritage such as shipwrecks and significant coastal landscapes; new aquaculture ventures; light pollution on coastal marine animals; sea urchin barrens in the southern region and the expansion of the bather protection program and installation of additional shark nets in the northern region (see below). Identified emerging and unassessed threats have been included in the Monitoring Program to be monitored, and knowledge gaps addressed as required, to inform the five-year health check. This process will identify if risks from these threats require future management intervention. HERITAGE The conservation, enjoyment and use of marine historic heritage provide social, cultural and economic benefits to the NSW community, but the threats to these benefits were not assessed as part of the statewide TARA; community feedback highlighted this gap. While some current government reforms are likely to benefit the protection and management of marine historic heritage, it is important to acknowledge the benefits of marine 23 historic heritage and the threats to which it is exposed. Examples of potential threats include the effects of anchoring of recreational and commercial vessels on shipwrecks, four-wheel driving on coastal landscapes, and sand mining in offshore areas. MARINE AQUACULTURE Oyster aquaculture has a long history and is the largest aquaculture industry in NSW. It operates under strict guidelines and is well regulated. Opportunities exist for new and emerging aquaculture ventures, particularly offshore, to address a growing demand for seafood. The NSW community has expressed its concern that new marine aquaculture ventures should be rigorously assessed and, if approved to proceed, closely monitored BATHER PROTECTION AND SHARK NETS while in operation to detect and manage unintended The bather protection program in NSW has seen the consequences. expansion of shark net deployment, from the traditional locations along the Sydney coastline, to trials of their use LIGHT POLLUTION on the north coast of NSW. The threats to marine life Submissions identified a need for the effect of artificial will continue to be monitored during these trials and this light (‘light pollution’) on species at night to be assessed activity will be reviewed periodically in line with current because its effects in NSW are not yet known. In trial approvals and management plans. warmer waters, it is well documented that artificial lighting can misdirect sea turtle hatchlings to onshore lights instead of to the ocean as well as increasing the Links to other government risk of predation when the hatchlings enter the water. Seabird fledglings, such as the wedge-tail shearwater, reforms and programs are also attracted to artificial lights when first leaving the This Strategy supports related NSW Government reform burrow – they can mistakenly fly to populated coastal processes. It integrates processes and outputs to meet areas rather than out to sea. This is considered as part the NSW Government’s directive to set the overarching of the research proposals for the wildlife research in framework that will coordinate the management of the Initiative 5. marine estate over the next ten years. SEA URCHIN BARRENS The presence of urchin barrens in NSW is a legacy issue The marine estate is to be attributed to a reduction of key urchin predators and now reflected in the stability of the barrens area over managed as a single continuous many decades. Monitoring is under way to understand how the structure of reefs may change in the presence system for the greatest and absence of urchin predators, however, results may take decades to be evident and measurable. Resources wellbeing of the community.13 are identified in the proposed Monitoring Program to expand this monitoring. 13 Independent Scientific Audit of Marine Parks in NSW (Beeton et al. for MEMA 2012) 24 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 COASTAL REFORMS ABORIGINAL CULTURAL HERITAGE REFORMS The legislative and policy framework under the The NSW Government remains committed to creating coastal reforms recognises natural coastal processes stand-alone Aboriginal cultural heritage legislation that and the local and regional dynamic character of the respects and protects Aboriginal cultural heritage while coast, and promotes land use planning decisions providing clear and consistent processes for economic that accommodate them. The reforms ensure and social development. The reform process is well coordinated planning and management of the coast advanced. and support public participation in these activities. Extensive feedback demonstrates there are wide-ranging The Coastal Management Act 2016 replaces the Coastal and contrasting views of what the final model for reform Protection Act 1979. This 2016 Act supports the objects should be. Key stakeholders are engaged in this process. of the Marine Estate Management Act 2014 as the coastal Initiative 4 considers Aboriginal cultural heritage reforms zone is an important part of the marine estate. Coastal in its actions, however does not duplicate the reforms. management programs will provide for regional delivery of some of the actions in various management initiatives COMMERCIAL FISHERIES BUSINESS of this Strategy, specifically Initiative 1, 2, 3 and 9. ADJUSTMENT PROGRAM (BAP) The Commercial Fisheries Business Adjustment Program (BAP) was developed in response to the 2012 Independent Report into NSW Commercial Fisheries Policy, Management and Administration. The three components of the BAP include structural adjustment, changes to governance processes, and consultation mechanisms. The structural adjustment component of the BAP includes: • tailoring share linkage arrangements to each share class that links shares to either catch or fishing effort • providing $16 million in assistance measures to help commercial fishers adjust their fishing businesses to be consistent with the new share linkage arrangements through the Adjustment Subsidy Program • streamlining current fishing controls that impact fishing efficiency. Initiative 6 will deliver actions relevant to commercial fishing reforms. 25 ABORIGINAL CULTURAL FISHING REFORMS BIOSECURITY REFORMS The NSW Fisheries Management Act 1994 was amended The Biosecurity Act 2015 came into effect on 1 July 2017. in 2009 to recognise Aboriginal cultural fishing and It aims to manage biosecurity risks from animal and plant commit to its protection and promotion. Aboriginal pests and diseases, weeds and contaminants by: cultural fishing is defined in the Act as: • preventing their entry into NSW fishing activities and practices carried out by • quickly finding, containing and eradicating any new Aboriginal persons for the purpose of satisfying entries their personal, domestic or communal needs, or for educational or ceremonial purposes or other • effectively minimising the impacts of pests, diseases, traditional purposes, and which do not have a weeds and contaminants that cannot be eradicated commercial purpose. through robust management arrangements. The Biosecurity Act 2015 and its supporting instruments NSW DPI, in consultation with the Aboriginal Fisheries were developed in consultation with industry, Advisory Council, will develop and implement community and government partners. It provides a management options for protecting and promoting flexible and responsive statutory framework to help Aboriginal cultural fishing. This links to Initiative 4 and achieve its objectives for the benefit of the NSW Initiative 6. The Marine Estate Management Act 2014 economy, environment and community. These reforms also supports cultural uses of the NSW marine estate, are linked to Initiatives 6 and 7. including in marine parks and aquatic reserves. CLIMATE CHANGE POLICY FRAMEWORK LAND MANAGEMENT AND BIODIVERSITY AND STRATEGIC PLAN CONSERVATION REFORMS In November 2016, the NSW Government released the The NSW Government has delivered on a 2015 election NSW Climate Change Policy Framework. It outlines the commitment to reform the legislative framework for land Government’s role in reducing emissions, and helping management and biodiversity conservation in NSW. The NSW adapt and become more resilient to the impacts reforms introduced the Biodiversity Conservation Act 2016 of climate change. The policy framework provides the and amendments to the Local Land Services Act 2013. strategic framework for NSW Government action on The reforms provide a modern approach to biodiversity climate change and sets two objectives: conservation that ensures strong protection for plants and animals (including marine fauna except for fish), • achieve net-zero emissions by 2050 supports ecologically sustainable development (including • make NSW more resilient to a changing climate. delivering a legislated biodiversity offset scheme), delivers prioritised and targeted investment, regulates The policy framework also includes commitments to vegetation clearing and provides for a sustainable and value emissions savings in economic appraisal and productive agricultural sector. consider climate change in government decision making. This policy framework builds on a strong track record The Biodiversity Conservation Regulation 2017 sets out of expanding clean energy, helping households and additional provisions to help protect marine mammals, businesses reduce their bills by saving energy and including the approach distances for any aircraft, vessels, preparing for the impacts of climate change. Initiative 3 unmanned aerial vehicles (drones), and other human links to the Climate Change Policy Framework. interactions with marine mammals. The Regulation also prescribes the penalty notice amounts for offences related to marine mammals. These reforms are linked to Initiative 5. 26 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 CROWN LAND REFORMS REGIONAL PORTS STRATEGY The Crown Land Management Act 2016 and the Crown Crown Lands and Water in the NSW Department of Land Legislation Amendment Act 2017 underpin the Industry is developing a comprehensive strategy to management of the State’s vast and important Crown guide investment and operations of regional ports and estate. This legislation is the culmination of more than associated infrastructure under its management, in the four years of engagement with the community about the short and long term. future of Crown land. The Crown lands reform program The Regional Ports Strategy is focused on the physical aims to specifically examine use and management of assets owned by the department, but it also seeks to coastal Crown land to promote the sustainable use of, understand the relationship with surrounding areas and and access to this land and improve public benefits assets owned by others to ensure that the Regional for current and future users. This reform is linked to Ports Strategy can help to achieve broader objectives, Initiative 2. including improved regional social and economic outcomes. This major project is linked to Initiatives 2, 6, 7 and 8. 27 NSW FREIGHT AND PORTS PLAN MOORINGS REVIEW The freight industry plays a vital role in the movement of There are more than 26,600 mooring sites managed $200 billion a year in goods across the State. The NSW by Roads and Maritime Services in NSW. The Freight and Ports Plan provides direction to business and Moorings Review program is designed to focus on industry for managing and investing in freight into the improved regulation, administration and exploring new future. technologies and delivery mechanisms. In developing the Plan, an integrated approach has Transport for NSW and the NSW DPI are investigating been adopted, with close alignment with the State transition arrangements for mandating the use of Infrastructure Strategy, Future Transport 2056 Strategy, environmentally friendly moorings in environmentally Regional and Greater Sydney Services and Infrastructure sensitive areas. The review seeks solutions for mooring Plans, and the issue-specific and place-based plans. This demand and reducing the threat of physical disturbance initiative is linked with Initiatives 7 and 8. to sensitive Posidonia seagrass. Better coordination among all agencies involved in NSW BOATING NOW mooring management will be pursued to ensure effective NSW Boating Now is a five-year boating infrastructure delivery and wider adoption of environmentally friendly funding program that aims to support the delivery of moorings across NSW. Accurate seagrass mapping and new and improved boating facilities through effective accessible data will support this activity. This project partnerships with local government and other links to Initiatives 3, 6, 7 and 8. organisations. The NSW Government’s $70 million funding program will support initiatives that enhance the boating experience by improving the overall capacity and amenity of boating infrastructure on NSW waterways. This is linked with Initiatives 7 and 8. In 2014, Transport for NSW and Roads and Maritime Services consulted extensively with the boating community, local government and other boating stakeholders on boating safety, access and infrastructure priorities across the State. This consultation informed the development of 11 Regional Boating Plans, which were released in early 2015. 28 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 How will the priority threats be managed? Marine Estate Management Strategy The Strategy establishes the overarching framework rather, it is the collective set of actions that address for the coordinated management of the marine estate priority threats (see Case Study 1). Many actions through to 2028, with a planned five-year health check. are interlinked between each initiative; for example, This will: actions in Enabling safe and sustainable boating (Initiative 7) are linked to actions in Reducing impacts • establish whether risk levels have changed in the first on threatened and protected species (Initiative 5). five years of the Strategy A summary of initiatives and proposed management • fill knowledge gaps in the environmental, social, mechanisms is included in Table 3. cultural and economic information available – the lack of this information is, in itself, a priority threat The nine management initiatives in this Strategy start with Improving water quality and reducing litter, • evaluate new or emerging threats that were not as this has been identified as of most concern to the initially identified. There may be new management community in the Community Survey. It is also the actions in response to this midterm health check. highest priority threat in the statewide TARA. The other The management of priority threats in this Strategy management initiatives are in no particular priority is grouped into nine management initiatives that order. Threats to Aboriginal cultural heritage and use summarise management objectives, benefits, threats, benefits are relevant to, and referenced in each initiative, stressors and proposed management actions. The but specific actions are included in Initiative 4. management initiatives do not operate in isolation; 29 CASE STUDY 1 - RESTORING THE RICHMOND RIVER Integrated initiatives to restore the Other Government policy and regulation changes in sixth-largest catchment in NSW Initiative 1 target the management of private drainage systems The Richmond River is a vital environmental and community and opportunities for private land conservation. This will asset. Despite more than a century of modification and misuse, contribute to improvements in estuarine water quality over the it provides habitat for fish and birds. It supports agriculture, long term. fishing, recreation and tourism activities. It is a spiritual place Capacity-building activities and on-ground works including for Aboriginal people, who have relied on its resources for wetland restoration, riparian fencing and replanting, and thousands of years. bank protection that will provide natural water quality improvements are planned under Initiative 1. The problem Initiative 1 also introduces education and compliance activities The past century has not been kind to the river and its to improve landholders’ understanding of the opportunities to floodplain. It is now in worse ecological health than most change their land use and their responsibility to contribute to estuaries in NSW. Water quality is ‘very poor’, with high better water quality outcomes in the Richmond River estuary. nutrient concentrations and excessive turbidity. Improved governance, education, compliance and research The floodplain habitat has been degraded by an extensive actions will be implemented via actions in Initiatives 8 and 9, artificial drainage system that was installed in the 1900s and and opportunities for increased Aboriginal participation in Sea extended 50 years later. Drainage of the area has resulted in Country management in the Richmond River will be facilitated the floodplain vegetation now dominated by dryland species. in Initiative 4. A direct result of these changes has been extensive fish kills Initiative 2 includes an action to provide fish passage at and diseased fish and oysters due to low dissolved oxygen priority barriers in coastal NSW. Two of the priority barriers, levels after even a moderate flood and exposed acid sulphate Cookes Weir and Jabour Weir, are in the Richmond River soils discharging acidic water into the river. The Richmond catchment near Casino. These fish passage works will build River experienced widespread fish kills affecting 30km of river on earlier successful barrier remediation projects and return in 2001 and 2008 as dissolved oxygen levels crashed to levels the Richmond River to a fish superhighway increasing fish lethal to aquatic life. breeding and productivity. Some of the drained former wetlands on the coastal floodplain Access to the Richmond River also needs to be ensured as are at, or below, sea level. Farmers that maintain these areas foreshore areas around coastal towns such as Ballina are highly in a drained state for agricultural purposes will see high prized places to walk, fish and swim. Decisions about the environmental and financial costs that will increase into the use of this Crown land on the foreshore should be strategic. future. Other options are needed. Foreshore Structure Strategies are proposed in Initiative 2 to identify the important areas of foreshore for public use, The opportunity commercial fishing and important habitats. Other areas may be suitable for installation of private foreshore structures. Land use is already changing throughout the Richmond River This strategic approach enables reductions in red tape for low catchment. The urban area is expanding, and agricultural impact works in mapped locations. land practices and crops are changing. The new land uses present an opportunity to improve floodplain management and Planning for the future changes to the estuary will also be planning. important to manage the impacts of climate change. Initiative 3 identifies the key locations where estuarine Better planning, coordination and on-ground action will help vegetation communities will be able to retreat upslope in restore the health of the Richmond River. These measures response to sea level rise. In many areas, hard infrastructure can help restore water quality in the system, which benefit such as rock walls, roads and housing will limit this migration, communities, the environment and local economies. and estuarine vegetation systems will degrade due to this and other pressures. Actions in Initiatives 1 and 2 will consider this The solution information in planning and securing opportunities for future On its own, no single initiative in the Strategy will be enough climate change adaptation. Improved foreshore planning will to restore the health of the Richmond River. It will take actions also assist in addressing habitat loss risks to threatened and from all the initiatives to work together to improve the health protected species, such as shorebirds, via Initiative 5. of the Richmond River estuary. Initiatives 6 and 7 provide fresh seafood to the community Under Initiative 1, a pilot program—Risk-based Framework for and enhance the range of fishing and boating experiences Considering Waterway Health Outcomes in Strategic Land-use on the Richmond River which are reliant on improved water Planning Decisions—will help councils and environmental quality. Habitat rehabilitation works under Initiative 1 will regulators consider water quality outcomes in their broader improve fish productivity, enhancing the benefits provided by catchment development and land use planning. Initiatives 6 and 7. 30 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 TABLE 3. Mechanisms to address priority threats in each management initiative Policy/ program/ Data / reporting Collaboration MANAGEMENT Regulation/ Research/ Education/ On-ground planning INITIATIVE compliance/ monitoring/ incentives awareness mapping works 1. Improving water quality and reducing litter        2. Delivering healthy coastal habitats with sustainable use and development       3. Planning for climate change      4. Protecting the Aboriginal cultural values of the marine estate      5. Reducing impacts on threatened and protected species        6. Ensuring sustainable fishing and aquaculture       7. Enabling safe and sustainable boating        8. Enhancing social, cultural and economic benefits       9. Delivering effective governance       Strategy Implementation Plan Marine Integrated An Implementation Plan, developed by the Authority’s Monitoring Program member agencies in consultation with key stakeholders The Monitoring Program links to the Strategy’s key articulates in more detail the management actions performance indicators (included in the Implementation that will address priority threats, as well as the key Plan) and will inform evaluation and reporting on performance indicators, timeframes and agency and the performance of the Strategy in preparation stakeholder responsibilities. A key focus of the plan for the five-year health check. It also enables is to coordinate functions and responsibilities within additional evidence to be collected in response and across government, including local government as to key knowledge gaps identified in the statewide well as partnerships with industry and community. TARA. For more information, see the section ‘How will we know if we are delivering on our vision?’ 31 Management initiatives 32 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 A series of icons are included for each management initiative to depict which environmental assets and/or community benefits (social, cultural and economic) will improve as a result of the management intervention. ICONS DEPICTING ENVIRONMENTAL ASSETS AND SOCIAL, CULTURAL AND ECONOMIC BENEFITS* ENVIRONMENTAL ASSETS Estuarine and ocean waters Rocky shores Saltmarsh Shallow sub-tidal reefs Mangrove Deep sub-tidal reefs Seagrass Fish assemblages Beaches and mudflats Planktonic assemblages Shallow soft sediments Species and communities protected under the Fisheries Management Act 1994 Deep soft sediments Species and communities protected under the Biodiversity Conservation Act 2016 SOCIAL, CULTURAL AND ECONOMIC BENEFITS Participation (safety, Aboriginal cultural health and wellbeing) heritage and use Participation (socialising Economic - indirect values and sense of community) (intrinsic and bequest) Enjoyment - biodiversity Economic - direct values and beauty (social (individual enjoyment) intrinsic benefit) Enjoyment - consumptive Viability of business use (e.g. catching a fish) (employment and value of production) * NSW Marine Estate Threat and Risk Assessment Report – Report (BMT WBM 2017) 33 MANAGEMENT INITIATIVES 1. Improving water quality and reducing litter WHAT ARE THE COMMUNITY BENEFITS? WHY IS THIS MANAGEMENT Healthy marine and estuarine environments with clean INITIATIVE NEEDED? water and biologically diverse marine life in their natural Water pollution has been identified as the number habitat are highly valued by the NSW community. one threat to both the environmental assets and Clean marine and estuarine waters support a variety of the social, cultural and economic benefits derived unique and abundant marine life. Clean waters are also from the marine estate in the statewide TARA. essential to the uses and activities that generate social, The Community Survey reported similar views: cultural and economic benefits from the marine estate. litter, oil spills and land-based runoff contributing People want to swim, surf, dive and fish in unpolluted to water pollution were seen as the greatest water, which, in turn, provides for vibrant marine environmental threats to the marine environment. industries. The commercial fishing and aquaculture Water pollution and littering were also identified as industries rely on clean water to provide fresh seafood high-priority social, cultural and economic threats. to the community. Aboriginal people rely on healthy There is an opportunity to improve the health waterways for marine resources, medicines, traditions of the marine estate by improving water quality and spiritual connections. The benefits of good water through habitat improvements, addressing quality for all coastal communities cannot be overstated. litter, and reducing land-based runoff. 34 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Litter has become a sufficiently significant concern for the Premier to set a goal of reducing the volume of litter in NSW by 40 per cent by 2020.14 This requires sustained government intervention and management action over the medium-to-long term. The NSW Environment Protection Authority (EPA) is responsible for leading programs to deliver litter reduction, with powers and responsibilities to reduce litter and enforce the laws shared across NSW state and local governments, businesses and individuals. Urban growth in the central region is increasing pressure on water quality. In the northern and southern regions, water quality is primarily under threat from diffuse sources of water pollution, particularly in catchments where the health of the receiving waters are already rated as being poor. The risk is increased if discharges are not managed cohesively and strategically. This management initiative represents an opportunity to improve the coordination and management of urban and rural diffuse-source water pollution at a catchment-scale at a time of significant land-use change, which will bring forward improvements to water quality and waterway health. Point-source pollution, such as sewage, industrial and thermal discharges is generally regulated by the EPA. The EPA’s regulatory processes aim to continually improve the performance of licensed premises that discharge to waters, including load-based licensing, risk-based licensing, five-yearly licence reviews, pollution reduction programs, environmental auditing The EPA also leads programs to understand and address programs, and enforcement action where appropriate. emerging water quality issues. For example, investigating the legacy of per- and poly- fluoroalkyl substances The EPA regulates sewage system operators, including (PFAS) use in NSW. PFAS are emerging contaminants, Hunter Water, Sydney Water and councils to improve which means that their ecological and/or human health sewage management and minimise pollution. To ensure effects are unclear. The EPA is working to better that the community is able to access information on understand the extent of PFAS use and contamination discharges, licence holders are required to publish in NSW, to be better prepared to respond if any the results of monitoring on their web sites. health and environmental impacts become known. Regulation of sewage system operators by the EPA has led to measurable improvements15 to water quality in the marine estate, including 14 ‘Keeping our environment clean’, Premier’s Priorities (NSW Premier significant improvements to water quality in the 2012) Hawkesbury River estuary and Sydney’s beaches. 15 For example see NSW EPA (2015), New South Wales State of the Environment 2015, NSW Environment Protection Authority, Sydney; Sydney Water (2014) 2014 Sewage Treatment System Impact Monitoring, Interpretive Report, Sydney Water, Parramatta; and NSW DECC (2009) Hawkesbury-Nepean River Environmental Monitoring Program: Final Technical Report, NSW Department of Environment & Climate Change, Sydney. 35 HOW WILL THIS MANAGEMENT INITIATIVE HELP? The management actions will reduce the impacts of Better education, changed land management practices urban and agricultural diffuse-source water pollution or improved infrastructure will empower the community including stormwater. Parts of the initiative will provide to reduce current impacts. Programs to restore lost improved guidance and coordination of land-use or degraded habitat will reverse the impacts of past activities affecting water pollution, including across activities that are still contributing to current water government. Other actions propose on-ground works quality problems. Restoration of natural water filters that will directly reduce the diffuse sources of water such as shellfish reefs, mangroves, saltmarsh and pollution. Research and monitoring programs are seagrass will reinstate water quality improvement proposed to fill knowledge gaps. processes and other environmental benefits that are naturally provided by these habitats. These activities will together provide a range of benefits to the community, including flow-on benefits A targeted marine litter campaign will address the direct such as the provision of locally caught fresh seafood impact of litter on the marine environment—wildlife to the community. A key action is to adopt a Risk- entanglement in plastic waste is an example. In addition, based Framework for Considering Waterway Health signage, better infrastructure and other measures will Outcomes in Strategic Land-use Planning Decisions. be trialled in a small number of hotspot sites as part of The framework is a best-practice protocol for managing an integrated approach to drive behaviour change with the impacts of land-use activities on the health of regard to littering. waterways in NSW. It brings together existing principles Consideration and application of opportunities to and guidelines recommended in the National Water better utilise, coordinate or adjust existing government Quality Management Strategy. The guiding principle of legislation and policies will provide a cost-effective the framework is to ensure that management actions will and sensible means for improving water quality within meet specific water quality and aquatic ecosystem health existing management. This is expected to deliver better standards. awareness, improved practices, streamlining of some Targeted land-use and habitat rehabilitation actions will processes, and more effective compliance of diffuse- improve past and present sources of water pollution. source water pollution. 36 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 1 MANAGEMENT OBJECTIVE : To improve water quality and reduce marine litter for the benefit of marine habitats, wildlife and the community Statewide priority threats Stressors Management actions Agricultural diffuse-source runoff – affects water, Surface water carries nutrients and toxic contaminants 1.1 Improve water quality in agricultural and urban saltmarsh, mangrove, seagrass, beaches and mudflats, to waterways. This affects aquatic organisms and catchments using a pilot-based implementation of shallow soft sediment, planktonic assemblages and habitats. the Risk-based Framework. species and communities protected under the FMA and 1.2 Improve the management of diffuse-source water BCA pollution by: Clearing riparian vegetation and adjacent habitat Clearing and wetland drainage leads to acidic runoff • clarifying NSW Government and local government including wetland drainage – affects water, saltmarsh, and black water events. Other stressors include roles and responsibilities shallow soft sediment, planktonic assemblages and physical disturbance to habitat, changed tidal flows, • building capacity to implement the Risk-based species and communities protected under the FMA and altered watertable levels and connectivity. Loss of framework BCA wetlands for migratory shorebirds leads to threatened species decline and local extinction. • using mechanisms within existing policy, planning and legislative frameworks to improve outcomes Stock grazing of riparian and marine vegetation – Physical disturbance occurs on saltmarsh, mangroves • improving minimum requirements for industry affects saltmarsh, mangrove, seagrass and species and and seagrass from trampling and grazing. Nutrients standards and ensuring compliance with communities protected under the FMA from livestock and turbidity impact seagrass. regulations and best-practice through social Environment TARA research, education campaigns and compliance programs. Urban stormwater discharge – affects water, saltmarsh, Urban stormwater can greatly increase the amount of mangrove, seagrass, beaches and mudflats, shallow pollutants such as sediment, nutrients, chemicals and 1.3 Facilitate and deliver on-ground activities that soft sediment, planktonic assemblages and species and litter entering the marine estate. This impacts water reduce diffuse-source water pollution through communities protected under the FMA and BCA quality and estuarine habitats. investigation and provision of funding programs and financial incentives. Sewage effluent and septic runoff – affects water, Sewage and septic runoff introduces pathogens and 1.4 Implement a targeted marine litter campaign and seagrass, shallow soft sediment, planktonic assemblages microplastics that impact on water quality, habitat and establish a Marine Litter Working Group. and species and communities protected under the FMA wildlife. 1.5 Develop monitoring, reporting and performance indicators for water quality actions and fill key Climate change (over the next 20 years) – affects Physical disturbance will occur to saltmarsh and knowledge gaps. This action is integrated into the saltmarsh, shallow reefs, planktonic assemblages and mangroves due to rising sea levels, wildlife will be Monitoring Program. species and communities protected under the FMA and disturbed through habitat loss for migratory shorebirds BCA leads to threatened species decline and local Note: diffuse-source water pollution includes extinction. stormwater. Modified freshwater flows – affects water, saltmarsh, Changes to tidal flow patterns have occurred through seagrass, shallow soft sediments, planktonic wetland drainage, leading to water pollution from acid assemblages and species and communities protected sulfate soils and blackwater events. under the FMA and BCA 37 Statewide priority threats Stressors Management actions Water pollution environmental values – septic Sewerage and septic runoff introduces (See actions above that address social and runoff, point-source pollution and sewage pathogens and microplastics affect community economic threats associated with water quality. overflows (outfalls and sewage treatment plants) enjoyment of the marine estate. Cultural actions are included in Initiative 4). Water pollution environmental values Stormwater discharges affect all aspects of – urban stormwater discharge community enjoyment, participation, direct and indirect values and economic viability, both in estuaries and coastal foreshores. Water pollution environmental values – litter, Litter, solid waste, marine debris and microplastics Social, cultural and economic TARA solid waste, marine debris and microplastics (often associated with stormwater) also affect all aspects of community enjoyment, participation, direct and indirect values and economic viability, both in estuaries and coastal foreshores. Water pollution environmental values – Poor water quality from agricultural sources impacts agricultural diffuse-source runoff all aspects of community enjoyment, participation, direct and indirect values and economic viability. Seafood contamination Pathogens and water pollution can result in seafood contamination affecting community enjoyment (consumptive use). Inadequate, inefficient regulation, Inefficient regulation of activities that lead over regulation (agencies) to water pollution can increase the threat to community safety and affect participation, enjoyment, and viability of businesses. Reductions in abundance of species and trophic levels Poor water quality can reduce the abundance of many marine species and affect trophic levels. This affects community enjoyment, viability of businesses and indirect values. 38 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Statewide priority threats Stressors Management actions Habitat disturbance Habitat disturbance leading to poor water quality impacts on biodiversity and beauty. Poor water quality reduces natural productivity affecting consumptive uses such as fishing. This affects community enjoyment and cultural use. Social, cultural and economic TARA Modified hydrology, hydraulics and flow regimes Modified hydrology can reduce water quality which impacts fish health and number. This leads to reduced enjoyment by impacting on consumptive use and on cultural benefits. Lack of community awareness of the marine Community awareness of the causes and estate and associated threats and benefits solutions of some water quality problems is limited, for example understanding acid sulfate soil impacts and remediation. This affects biodiversity and beauty, impacting on community enjoyment and cultural heritage and use. Inadequate social and economic information Inadequate social information has hampered design of effective programs for voluntary practices that result in improved water quality, such as increased implementation of best land use practices techniques. This then impacts on all social and economic benefits. 39 MANAGEMENT INITIATIVES 2. Delivering healthy coastal habitats with sustainable use and development WHAT ARE THE COMMUNITY BENEFITS? Healthy and resilient coastal and marine habitats are Most marine species rely on different types of habitat fundamental for a biologically diverse marine estate at different life stages, so they need a sufficient range that enables a range of opportunities for enjoyment, and quality of coastal and marine habitats, connectivity participation, employment, education, research and within habitat types, and proximity to other habitats. general appreciation of nature in the marine estate. These are fundamental to building resilient communities and maintaining viable populations of fish and other NSW has a wide range of coastal and marine habitats. species using the habitats. Subtidal rocky reefs, soft sediment and rocky foreshores in the central and southern regions support temperate Coastal habitats and the benefits they provide, draw fish species, sponges, crustaceans and bryzoans. Warmer many people to visit or move to the coast. The Australian waters in the northern region support coral growth with lifestyle is strongly associated with the coast in both over 100 species of corals, tropical anemones and an urban and rural settings and the overwhelming majority array of sub-tropical and temperate fish, shark and ray of the NSW community lives within 50 kilometres of the species. All seven mangrove species found in NSW occur coastline. Coastal residents and visitors enjoy a variety of in northern region estuaries, and seagrass beds that activities throughout the marine estate – the upstream occur in most estuaries are known for their importance mangrove-lined coastal river systems, to the bustling as nursery areas for many marine species. downstream harbours and port facilities, and beyond to the extensive offshore reefs systems. 40 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 WHY IS THIS MANAGEMENT INITIATIVE NEEDED? Community wellbeing, both physically and mentally, is This management initiative addresses threats to habitats improved by outdoor pursuits and experiences in healthy (and related species) associated with use of the marine coastal habitats. It is, therefore, at the core of marine estate and adjacent catchments. The threats identified estate management – to promote a biologically diverse, in the statewide TARA include foreshore development, healthy and productive marine estate that facilitates modification of waterways for boat navigation, altered economic opportunities, the broad range of social and hydrology from dredging or estuary entrance works, cultural uses, as well as opportunities for research and drainage works, and manipulation of freshwater inputs education. to estuaries, beach nourishment and four-wheel driving impacts. With the majority of the NSW community living in coastal catchments, the daily decisions people make The modification or loss of coastal habitat (including can impact on important coastal habitats such as water beaches, mudflats, rocky shores, wetlands, mangroves, quality or flow, seagrass beds and estuary foreshores. saltmarsh, and seagrasses) from development or other Population growth and development along the NSW human activities significantly affects coastal and marine coast can increase the threats and risks to coastal biodiversity. Poorly considered development can catchments, their estuaries and nearby offshore areas. reduce or remove breeding and nursery areas for fish, shorebirds and waders, affect other wildlife habitats and change natural tidal and freshwater flow patterns. This can cause problematic sediment transport and ultimately reduce water quality. 41 Declining biodiversity has negative social, cultural and economic impacts on local communities that, passively and actively, enjoy the numerous benefits of the marine estate. Watching wildlife, commercial and recreational fishing, boating and the enjoyment of scenic beauty are all affected. Habitat disturbance also has a cultural impact on Aboriginal communities through damage to sites, disruption of cultural practices, or decline in spiritually important species. Decades of altered freshwater flows, habitat modification and estuary entrance works present historical and ongoing threats to estuarine habitat, water quality and species abundance. Legacy issues can be addressed to mitigate past damage, prevent future losses, and promote rehabilitation where appropriate. While coastal infrastructure, such as breakwalls, serve an important role, including providing safe boating access to the marine estate, older structures can be strategically modified to enhance fish habitat and promote experiences such as fishing or wildlife observations. 42 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 HOW WILL THIS MANAGEMENT INITIATIVE This management initiative is closely aligned with the HELP? coastal reforms and the Crown lands reform programs. It will improve the way State and local government This management initiative will implement mechanisms manage and develop the coast so that legacy issues to increase habitat health and resilience by: are considered with new coastal use and development • limiting future detrimental impacts of foreshore proposals, and existing impacts are remediated where development and uses on coastal and estuarine possible. This includes being more sensitive to managing habitats threats to key physical and ecological processes that • using infrastructure renewal projects (urban and rural) support marine biodiversity, clean beaches and healthy and agricultural land-use changes as an opportunity to estuaries for ongoing public benefit. address legacy land-use issues in coastal catchments The management initiative supports the development • ensuring that estuary entrance management and of a policy for coastal and submerged Crown lands dredging is done in a way that maintains or improves which includes offshore habitats such as soft sediment, estuarine and marine habitat health shallow and deep reefs. These habitats and associated species were identified as at risk from climate change • reducing the cumulative impacts of existing and ocean trawl, which are addressed in Initiatives 3 agricultural infrastructure on freshwater flows and and 6 respectively. Fish assemblages at risk from fishing estuarine hydrology are addressed in Initiative 6. Threatened and protected • promoting the use of best practice to design and species are addressed in Initiative 5. assess foreshore development and waterways infrastructure proposals. 43 2 MANAGEMENT OBJECTIVE : To protect coastal and marine habitats and associated species and enhance the health of the marine estate by improving the design, quality and ongoing management of foreshore development, use and waterway infrastructure Statewide priority threats Stressors Management actions Dredging (navigation, entrance and harbour Altered flow patterns, physical disturbance of 2.1 Assess and manage cumulative and legacy impacts for estuary management) – affects water, seagrass, sediment (e.g. dredging for navigation), altered tidal entrance modification and dredging by: beaches and mudflats, shallow soft salinity patterns and magnitude, reduced water • strategically dredging trained entrances to minimise the sediment, planktonic assemblages, species quality (increased water turbidity), and altered impact of interruptions to sand movement caused by entrance and communities protected under the FMA substrate transport (natural beach nourishment). infrastructure and redeploying sand at erosion and sediment deprived locations Hydrological modifications (estuary entrance modifications) – affect water, • developing and incorporating practical design features that saltmarsh, seagrass, mangrove, beaches and maximise marine habitat and recreational values into existing mudflats, shallow soft sediment, planktonic training walls during maintenance and upgrade works assemblages and species and communities • auditing commercial dredging in estuaries. protected under the FMA and BCA 2.2 Assess and manage cumulative and legacy impacts on foreshore Modified freshwater flows – (extraction Water pollution in the form of low dissolved development and land-use change in the coastal zone by: Environment TARA and artificial barriers) losses and oxygen acid sulfate soil leaching into • reviewing and updating existing coastal design guidelines to changes to water, saltmarsh, seagrass, waterways, lowering pH and increasing promote best-practice designs in coastal urban environments. planktonic assemblages, shallow soft turbidity. Changes to tidal flows, watertable sediment and species and communities levels, inundation regimes and floodplain and • implementing policy changes to enable adequate assessment protected under FMA and BCA catchment hydrology also contribute. Impacts of and response to the impact of existing infrastructure that on aquatic habitat connectivity, including modifies freshwater flows or drains wetlands when rezoning or between fresh, estuarine and marine waters. when land-use change is considered to remediate the legacy impacts of older infrastructure. Foreshore development – impacts on Physical disturbance from habitat removal 2.3 Develop and implement a statewide policy for the management of saltmarsh, mangrove, beaches and and destruction, legacy issues associated with coastal Crown lands (including submerged lands) in collaboration mudflats and species and communities clearing and development, changes to tidal with local government Coastal Management Programs in priority protected under the FMA and BCA flows and wave patterns, changes to sediment areas to: (grain size) and freshwater inputs, impacts on Clearing riparian vegetation – affects water, nesting shorebirds and turtles due to habitat • develop estuary-wide strategies that reduce red tape and inform saltmarsh, shallow soft sediment, planktonic loss, possible impacts on inshore dolphins. the assessment of foreshore structures strategies for private assemblages and species and communities works spanning the intertidal foreshore (such as pontoons and protected under the FMA and BCA boat ramps) Beach nourishment and grooming – affects beaches and mudflats 44 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Statewide priority threats Stressors Management actions Four-wheel driving – affects • develop marine vegetation management plans that maximise saltmarsh, beaches and mudflats and resilience, accommodate sea level rise (see Initiative 3), address species and communities protected key threats (clearing and drainage, cattle grazing, four-wheel under the FMA and BCA driving on saltmarsh), facilitate rehabilitation opportunities (see Initiative 1), and reduce red tape for low impact works (e.g. mangrove trimming for safety traffic sight-lines) • investigate estuary-wide bank protection options to inform the assessment of bank protection work proposals (including beach nourishment and grooming) and facilitate rehabilitation opportunities (see Initiative 1) • facilitate greater coordination between State and local government in the assessment of foreshore and intertidal zone Environment TARA development proposals • maximise State and local government responses for non- compliant development and activities. 2.4 Re-establish resilient coastal floodplains and connectivity within coastal catchments by: • better aligning existing government policy and resourcing for floodplain and drainage management • providing fish passage at priority weir and road crossing barrier sites in coastal catchments. 2.5 Undertake research and monitoring to address key knowledge gaps, such as techniques to minimise the impact of trained estuary entrances, and methods for determining marine vegetation resilience, and assess the effectiveness of the management actions within this initiative. This action is integrated into the Monitoring Program. Threats specifically addressed in this Stressors affecting all aspects of community (See actions above that address social and economic threats associated management initiative are governance and enjoyment, participation and economic viability, with coastal use and development. Cultural actions are included in lack of access both in estuaries and coastal foreshores, include: Initiative 4). Social, cultural and • habitat disturbance • lack of compliance (e.g. illegal development) economic TARA • loss of public access (private development) • limited or lack of access infrastructure • inadequate and inefficient regulation. 45 MANAGEMENT INITIATIVES 3. Planning for climate change WHAT ARE THE COMMUNITY BENEFITS? WHY IS THIS MANAGEMENT Preparing for climate change will help to ensure INITIATIVE NEEDED? that the benefits the marine estate provides to the Climate change was identified as a priority threat in NSW community will continue under climate change the statewide TARA because of the impact on the projections. It enables communities and industries to environmental assets and community benefits derived develop adaptation responses and identify opportunities from the NSW marine estate. In the next 20 years, to respond to climate change. It also helps the climate change is likely to affect key components of community better understand the likely effects so we the marine estate: ocean temperatures, the supply can build resilience and identify opportunities to thrive of nutrients, ocean chemistry, food chains, wind in a changing climate. In most cases, the cost of being systems, ocean currents and extreme events such as prepared is much lower than the cost of recovery. east coast lows. These variables have the potential to affect the distribution, abundance, breeding cycles and migrations of marine plants and animals that people rely on for food, income and enjoyment. Extreme events can also exacerbate water pollution and degrade important coastal and marine habitats. The impacts of climate change are expected to increase as we move towards a 50-year timeframe. 46 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Through knowledge and research, communities will This initiative supports the long-term objective better understand the impacts of climate change to make NSW more resilient to climate change, as on our marine estate. This will allow communities part of the NSW Government’s Climate Change to better prepare and adapt to future changes. This Policy Framework. This framework outlines policy initiative will help fill this gap by building on and directions to guide government action, including supporting actions under the coastal reforms and managing the impacts of climate change on natural the NSW Climate Change Policy Framework. resources, ecosystems and communities. This initiative supports the NSW coastal reforms, by HOW WILL THIS MANAGEMENT increasing our knowledge about the impacts of climate INITIATIVE HELP? change on the marine estate to help guide management This management initiative will increase our actions. Through these reforms, the NSW Government understanding and knowledge of how climate change is working to deliver a new legislative framework to will affect the marine estate. The benefits include: better equip local government and coastal communities to respond to existing and emerging challenges like • supporting the conservation and management of storm surges, coastal erosion and east coast lows. threatened and protected marine and estuarine ecosystems (such as mangrove and saltmarsh) • building regional resilience to climate change, by facilitating strategic adaptation planning and management • assisting managers as they plan and prioritise current and future resources for the management of environmental, social, cultural and economic values. 47 3 MANAGEMENT OBJECTIVES: Understand, adapt and increase resilience, to help mitigate the impacts of climate change on the NSW marine estate Statewide priority threats Stressors Management actions Sea level rise on saltmarsh, mangrove, Physical disturbance of habitats from 3.1 Enhance mapping of estuarine communities (such as saltmarsh and beaches and mudflats, rocky shores and sea level rise, increased storms, flooding, mangroves) to identify those communities most at threat from sea level rise species and communities protected under inundation resulting in: under expected climate change scenarios and use this information to model the FMA and BCA areas of land suitable for retreat and those that should be prioritised for • loss of habitat and nesting sites for protection. Apply this information in decision making. shorebirds and turtles 3.2 Provide support to coastal and marine managers to facilitate consistent • loss of shorebirds foraging habitat application of the NSW and Australian Capital Territory (ACT) Regional • loss of intertidal foraging habitat including Climate Modelling (NARCliM) projections in marine management. seagrass 3.3 Build the knowledge and capacity of coastal and marine managers and the • loss of intertidal habitats such as community to increase resilience to climate change in the marine estate saltmarsh. through strategic adaptation planning and management. 3.4 Investigate the impacts of climate change on Aboriginal cultural heritage Ocean acidification on all environmental pH changes (acidification) may affect values in the marine estate, and implement strategies to reduce or adapt to assets (except fish assemblages) calcifying organisms and sensitive organisms this risk. This action is linked to Initiative 4. Environment TARA (such as urchins and molluscs, and including planktonic assemblages). 3.5 Research and monitor the effects of climate change on the marine estate to fill knowledge gaps and inform future management actions, focusing on marine biodiversity and coastal communities. This action will be integrated Altered ocean currents and nutrient Changes to nutrients and fish abundance into the Monitoring Program. inputs on shallow reef, species and are likely to impact higher order predators communities protected under FMA and (seabirds, marine mammals, turtles). Note: on-ground activities and habitat protection and rehabilitation that will BCA help mitigate the impacts of climate change will be undertaken in actions under Initiatives 1 and 2. Activities will include rehabilitating coastal wetlands, Altered storm and cyclone activity on Increased mortality of marine fauna after revegetating riparian areas, and protecting river banks. water, saltmarsh, seagrass, reefs and extreme events. species and communities protected under Marine protected areas contribute to building resilient ecosystems that are FMA and BCA better able to cope with stresses such as climate change. Marine protected area commitments are captured under ‘Marine protected areas and other forms of Climate and sea temperature rise on all Changes to the East Australian Current and spatial management’ section. environmental assets except shallow soft sea temperatures, which are likely to affect sediment, rocky shores and planktonic turtle, whale and dolphin migration patterns. assemblages Changes in temperature are likely to impact turtles nesting success and sex composition, range shifts in many species (including fish), loss of habitat such as kelp. 48 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Statewide priority threats Stressors Management actions Environmental – climate change stressors Impacts participation (e.g. safety, health and (See actions above that address social and economic threats associated with 20 years wellbeing) associated with loss of beach climate change. Cultural actions are included in Initiative 4). amenity through increased frequency of dangerous storms, potential increase in the abundance of jellyfish and changes in Social, cultural and economic TARA abundance of marine species. Climate change is affecting ocean temperatures, the supply of nutrients, ocean chemistry, food chains, wind systems, ocean currents and extreme events such as cyclones. These variables have the potential to affect the distribution, abundance, breeding cycles and migrations of marine plants and animals that people rely on for food, income and enjoyment; this affects business viability. Increased sea temperatures and sea level rise could affect the spiritual connections of Aboriginal communities (e.g. culturally significant species, links to Land and Sea Country and food sources). 49 MANAGEMENT INITIATIVES 4. Protecting the Aboriginal cultural values of the marine estate WHAT ARE THE COMMUNITY BENEFITS? WHY IS THIS MANAGEMENT Sea Country is important to the overall health and INITIATIVE NEEDED? wellbeing of Aboriginal people, their cultural practices Aboriginal cultural heritage values within the marine and traditions. The Sea Country of NSW is culturally estate are at risk from many threats identified in the significant to Aboriginal people who live along the statewide TARA. Physical threats to the environment, NSW coast and further afield. For thousands of such as pollution, loss of habitat or depletion of years, Aboriginal people have relied on the natural stocks threaten Aboriginal culture because the lives resources provided by the sea. Sea Country includes and spirituality of Aboriginal people are directly islands, beaches, headlands, rocky shores, the ocean related to Country. For Aboriginal people, culture, and estuaries, all of which hold spiritual significance. nature, land and water are linked. Where these links to Country are threatened, due to environmental The importance of Sea Country to Aboriginal people degradation, restricted access, or competition between is reflected in their dreaming, languages, art, music, user groups, it can result in a loss of culture. dances and stories. Coastal Aboriginal communities collect sea plants, animals, shells and stones that are important for use in ceremonies, food, traditional medicine and healing. This knowledge is passed on to the next generations to continue these practices. 50 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 This occurs: HOW WILL THIS MANAGEMENT • through the degradation of culturally significant sites INITIATIVE HELP? • by reducing the ability of Aboriginal people to The actions proposed under this management initiative maintain connections to Country aim to increase Aboriginal participation in management decisions within the marine estate and establish a • by limiting the transfer of cultural knowledge across framework that will allow local communities to identify generations cultural values and undertake coastal management • through the loss of spiritual connections such as works to protect these values on Land and Sea Country. culturally significant species. These actions will be developed further by working The lack of Aboriginal involvement in decision-making collaboratively with Aboriginal communities to ensure has also been identified as a major threat to culture. the actions will be effective and appropriate in The need for Aboriginal knowledge and expertise addressing threats to culture. This will include targeted to be incorporated into the ongoing management engagement with peak Aboriginal bodies, government of Sea Country is recognised by government. There agencies and statutory advisory bodies to design is currently limited opportunity for structured and actions that can link with but not duplicate other ongoing participation of Aboriginal people in marine government reform processes, in particular, proposals estate management. Increasing participation will to improve the governance arrangements for managing benefit in the culturally appropriate management of Aboriginal cultural heritage and cultural fishing. priority stressors identified by the statewide TARA. The Strategy does not affect the operation of the Native Title Act 1993 of the Commonwealth or the Native Title (New South Wales) Act 1994 in respect of the recognition of native title rights and interests. 51 4 MANAGEMENT OBJECTIVE: Work with Aboriginal communities in the management of Sea Country to reduce threats and risks to Aboriginal cultural heritage Statewide priority threats Stressors Management actions Resource-use conflict Cultural fishing rights often meet resistance from other 4.1 Work with Aboriginal communities to evaluate current sectors, and conflict will increase as these rights are arrangements for Aboriginal involvement in Sea Country pursued. This conflict can result in antisocial behaviour, management and decision-making and establish and implement such as vandalism of significant cultural heritage a framework to ensure the involvement of Aboriginal people is places or artefacts, or the ability to practice cultural or effective and appropriate. traditional use of sites. 4.2 Work with Aboriginal communities to identify the cultural values of Sea Country to improve the incorporation of values into decision-making on the marine estate. Environmental For Aboriginal people, culture, nature, land and water are all linked. Where these links to Country are no 4.3 Implement an integrated Aboriginal engagement model to longer possible due to environmental degradation from increase Aboriginal participation in Sea Country management, water pollution, habitat disturbance, pests and disease, planning and monitoring through employment and training of Aboriginal people at a regional and local level. Social, cultural and economic TARA or climate change, Aboriginal people are prevented from using the land and practicing and passing on 4.4 Explore and assist Aboriginal communities to implement cultural traditions. opportunities for economic development in the NSW marine estate and improved representation of Aboriginal cultural values in NSW marine parks. 4.5 Integrate research and monitoring into the Monitoring Program Governance of the marine estate Inadequate or no engagement with Aboriginal people to address key knowledge gaps and to assess management and critical knowledge gaps on marine estate management issues prevents input to effectiveness in reducing threats and risks to Aboriginal cultural aspects of decision-making that impact on culture. heritage. Public safety Aboriginal people frequently eat and have cultural ceremonies using wild pipis, oysters and other shellfish that are known to be vulnerable to contamination issues. Lack of access availability The historic and ongoing loss of access to the coast associated with urbanisation, private development and protected area closures, such as sanctuary zones, prevents the practice and sharing of culture on Land and Sea Country. 52 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 53 MANAGEMENT INITIATIVES 5. Reducing impacts on threatened and protected species WHAT ARE THE COMMUNITY BENEFITS? NSW boasts unique marine life that plays an important The management of marine animals and plants that role in maintaining a balanced ecosystem. Three- are not threatened or protected are included in a quarters of respondents to the Community Survey number of other management Initiatives. For example, felt that the natural beauty and marine wildlife of the Initiative 2 seeks to address threats to coastal and marine estate were key reasons to live in and visit marine habitats and associated species, including NSW. The community also called for the abundance mangrove, saltmarsh and seagrass communities that and diversity of marine life to be maintained. are key to the survival of associated species such as crustaceans, juvenile fish and shorebirds. Initiative 3 NSW is home to many threatened and protected seeks to address threats from climate change (such species. Some are managed under the Biodiversity as coral bleaching, ocean acidification), which poses Conservation Act 2016 (BCA): such as species of significant threat to subtidal reefs and the suite of whales, dugongs, seals, turtles, Little Penguin, reef fish, marine algae and shelled animals. seabirds, shorebirds and wader birds and saltmarsh Initiative 6 focuses on fish and shellfish species targeted communities. Marine vegetation, aquatic invertebrates by commercial, recreational and cultural fishers, and and fish are managed under the Fisheries Management seeks to ensure sustainable fishing and aquaculture Act 1994 (FMA): such as Greynurse Shark, White practices. Sharks, Black Rockcod and endangered populations of the seagrass Posidonia australis and marine Reducing impacts on threatened and protected brown algae Nereia lophocladia, which is found in species will benefit the community through improved only one location on the north coast of NSW. nature appreciation and tourism, including the scuba diving and whale and dolphin watching industries, 54 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 WHY IS THIS MANAGEMENT INITIATIVE NEEDED? having measurable benefits for the economy, the The cumulative impacts of climate change, fishing, litter, environment and the community. The NSW whale vessel-based activities, recreational activities such as watching industry is the largest in Australia. It is boating, as well as land-based and industrial activities, worth more than $65 million to the NSW economy, pose a cumulative threat to threatened and protected attracting visitors to coastal national parks in the species. These impacts also threaten Aboriginal winter months. The ‘Wild About Whales’ mobile app cultural heritage due to the spiritual connection has now more than 40,000 active users, showing Aboriginal people have with culturally significant a growing community interest in marine wildlife. species such as whales, dolphins, fish and turtles. The NSW community also engages in wildlife counts The cumulative threats of commercial and recreational and wildlife rescue. The 2015 survey Who Cares fishing can impact threatened and protected species About the Environment? reported that 28 per cent through bycatch, ghost fishing, marine debris, physical of respondents had volunteered in these activities.16 disturbance and population health. Entanglement in, Non-government and volunteer organisations, such and ingestion of fishing gear and marine debris has as the Organisation for the Rescue and Research of a significant impact on marine mammals, turtles and Cetaceans in Australia (ORRCA), support the NSW birds. Entanglement in active or discarded fishing National Parks and Wildlife Service with marine mammal gear can cause injury or drowning of animals. rescue. This results in significant cost savings for the NSW Government. These organisations also make a valuable contribution to community education, which 16 Who Cares About the Environment? (Office of the Environment and improves environmental attitudes and behaviour. Heritage 2015) 55 Land-based threats such as urban development, vulnerable to injury, for example, along the south introduced pests, and recreational activities such as coast where Southern Right Whales go to calve. shore-based fishing, dog walking, four-wheel driving and In the 2015 survey Who Cares About the bait collecting are a threat to vulnerable and endangered Environment?, community members stated their shorebirds and turtles in NSW. These activities can concern for the wellbeing, decline and survival of harm eggs and chicks or hatchlings. Human presence wildlife due to environmental degradation across can disturb shorebirds by causing them to move away NSW. They specifically raised the issue of tidal from important foraging areas or leaving their eggs changes caused by climate change, and how this and chicks exposed. Runoff from land-based activities will erode beaches and endanger wildlife.17 also increases wildlife disease and entanglements. The 2016 State of the Environment Australia Report also Vessel-based activities, such as boating, shipping, and recognised the impacts of stressors such as climate commercial vessels, are also cumulative threats to change, water pollution and vessel disturbance as wildlife. Vessel-based activities in NSW are important key impacts on the marine environment, calling for to the community, but the noise and disturbance further understanding and mitigation measures.18 of vessels can impact the ability of animals to communicate, navigate and hunt. Noise also impacts wildlife breeding, foraging, resting and animal health 17 Who Cares About the Environment? (Office of the Environment and and can displace animals from their habitat. Vessel Heritage 2015) strike can kill or injure wildlife. There is an elevated 18 ‘Executive Summary – Marine environment 2016’, in Australia State of the Environment Report (Australian Government Department of risk in estuarine waters where populations are more the Environment and Energy 2016) 56 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 HOW WILL THIS MANAGEMENT INITIATIVE HELP? This management initiative seeks to reduce the cumulative threats to threatened and protected species and to enable the continued social, cultural and economic benefits from the biodiversity of the marine estate. Proposed management actions include: • improving partnerships between government agencies and non-government organisations • improving existing threatened and protected species conservation programs • expanding community and industry education on the impacts of noise, vessel collisions, marine debris and fishing activities and gear. The expansion of the commercial fishing observer program in this initiative will assess bycatch and interactions with threatened and protected species, including sharks such as the Greynurse Shark and Black Rockcod, listed as critically endangered and vulnerable respectively under the Fisheries Management Act 1994. This initiative also links with Initiative 6 which commits to an environmental assessment in the recreational fishing sector. This provides an opportunity to understand and mitigate threats posed by recreational fishers to threatened and protected species. 57 5 MANAGEMENT OBJECTIVE : To understand and mitigate threats to threatened and protected species in NSW. Statewide priority threats Stressors Management actions Climate change – altered storm and Climate change is predicted to cause reductions in food 5.1 Improve strategic planning and coordination for marine cyclone activity, climate and sea availability and changes in food distribution, increases threatened and protected species programs across NSW to temperature rise, ocean acidification, sea in disease and mortalities, changes in distribution and address priority threats. level rise and ocean currents and nutrient migration patterns, reductions in breeding success and input nest viability, and inundation and permanent loss of 5.2 Strengthen partnerships for marine threatened and protected habitat. species conservation responses to ensure effective management, including: • establishing governance arrangements Estuary entrance modifications Modifications cause wildlife disturbance, physical disturbance, water pollution, sedimentation and • strengthening interagency capabilities changes to the tidal prism, leading to degradation, • formalising partnerships for rescue, rehabilitation and inundation and permanent loss of habitats. notifications • establishing a process for Aboriginal knowledge holders to participate in marine wildlife events with culturally significant Point discharges (industrial discharge, Water pollution, including increased chemicals, species, e.g. marine mammal strandings and carcass sewage effluent and septic runoff) microplastics, and pathogens, is linked to disease management (see Initiative 4). outbreaks and mortalities in wildlife populations. Environment TARA 5.3 Improve the awareness of threats to threatened and protected species and compliance with regulations to reduce impacts Deliberate introduction of animals and Predation of shorebirds and seabirds has been linked through education campaigns, social research (see Initiative 8) plants to regional declines and localised extinctions of some and increased compliance. species. 5.4 Improve reporting and data sharing on threatened and protected species threats to support evidence-based decision- Agricultural diffuse-source runoff Water pollution, including increased nutrients and making, including linking and enhancing existing databases, contaminants, is linked to disease outbreaks and raising awareness of reporting pathways, actively analysing and mortalities in wildlife populations. communicating data more regularly, and integrating research and data into the Monitoring Program. Clearing riparian and adjacent habitat Clearing riparian and adjacent habitat causes 5.5 Expand existing observer programs, including the use of new including wetland drainage degradation and permanent loss of habitat, impacting technologies to high and moderate risk commercial fisheries on population health and breeding success. to better understand threats associated with bycatch and interactions with threatened and protected species. 5.6 Understand and reduce the impacts of threatened and Foreshore development Development leads to the permanent loss or protected species habitat modification through mapping of degradation of habitats, impacting on wildlife health, key habitat areas, embedding rehabilitation and conservations breeding success and population viability. actions in planning processes, and collaborating with land owners and the community to protect species and habitats. 58 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Statewide priority threats Stressors Management actions Urban stormwater discharge Runoff and associated contaminants and debris can 5.7 Develop and implement research programs to address impact wildlife health, including increases in disease key knowledge gaps associated with cumulative threats to and mortalities. threatened and protected species and the effectiveness of management interventions. This action will be integrated into Modified freshwater flows The alteration of natural flow regimes causes the Monitoring Program. degradation and permanent loss of habitat, reductions in prey availability and loss of connectivity between habitat areas used by shorebirds and prey. Passive recreational use – swimming, Dog walking and four-wheel driving cause physical and surfing, walking and dog walking wildlife disturbance and marine debris, damage nesting Environment TARA habitat of turtles and shorebirds, and disturbs the Four-wheel driving behaviour, health and breeding success of threatened shorebirds. Charter activities – whale and dolphin Whale and dolphin watching impacts on the ability of watching whales and dolphins to rest, feed and breed leading to poor health and sometimes displacing them from habitat areas. Boating and boating infrastructure Vessel-based activities are a cumulative threat and can cause collisions, noise and physical disturbance and marine debris. Vessel collisions cause injury or mortality of wildlife. Noise from vessels impacts the ability of Small commercial vessels (e.g. ferries, animals to communicate, navigate and hunt and also charter boats) reduces animal health and can displace animals from their habitat. Habitat disturbance (e.g. from foreshore Enjoyment of biodiversity is threatened by biodiversity (See actions above that address social and economic development, commercial and recreational loss, poor wildlife health and welfare, and wildlife threats associated with threatened and protected species. Social, cultural and fishing methods, four-wheel driving and disturbance. Aboriginal cultural actions are included Initiative 4). extractive industries such as mining) economic TARA Wildlife disturbance (shorebirds, turtles, whales) and impacts on species by dog walkers, four-wheel drives and vessels) 59 MANAGEMENT INITIATIVES 6. Ensuring sustainable fishing and aquaculture WHAT ARE THE COMMUNITY BENEFITS? Recreational and commercial fishing make a significant Aboriginal cultural fishing is a key value and of social contribution to the NSW economy. Recreational importance to Aboriginal people on the coast and fishing generates about $3.4 billion of economic ongoing access is imperative to the provision of activity annually and creates the equivalent of around fresh seafood to the community, which enhances 14,000 full-time jobs. It is enjoyed by 850,000 health and wellbeing. Access to Sea Country and anglers every year and offers considerable health, involvement in the management of Sea Country social and educational benefits across all parts of enables knowledge and traditions to be passed the community. It has a long history in NSW: it is a on to younger generations (see Initiative 4). fully inclusive, non-discriminatory pastime and is one The NSW seafood industry includes wild harvest of the few forms of nature-based recreation that commercial fishers, aquaculturists, wholesalers, can be enjoyed throughout childhood, adolescence, processors and retailers who supply fresh seafood adulthood and into the senior years. Recreational to local, national and global markets. Wild harvest fishing also provides significant benefits to children commercial fishing and aquaculture provide more than and youth with behavioural and mental health issues $90 million and $70 million respectively of Gross Value and can assist in addressing antisocial behaviour. of Production to the NSW economy as well as indirect Recreational Fishing Licence fees support education, employment and economic opportunities to the wider compliance, research as well as habitat protection and community. In total, commercial fishing, aquaculture restoration works by anglers to protect the aquatic and oyster farms generate more than half a billion environment and help ensure a positive future. dollars of economic activity each year and directly employ more than 4,000 people. Most commercial 60 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 fishers are based in regional coastal towns, and in some abundance are associated with extractive industries, instances, the seafood industry provides the main source the level of extraction seeks to balance ongoing of employment for the community. Boat harbours, sustainability to ensure the future of the resource. breakwalls and safe boat launching facilities underpin Sustainable fishing is defined as: benefits derived from many fishing activities. The health benefits of seafood are well documented. The industry • leaving enough fish in the ocean – fishing must be at a is rising to the challenge of ensuring that locally sourced level that ensures it can continue indefinitely and the fresh seafood is available throughout NSW. fish population can remain productive and healthy • respecting habitats – fishing activity must be WHY IS THIS MANAGEMENT managed carefully so that other species and INITIATIVE NEEDED? habitats within the ecosystem remain healthy The Community Survey highlighted the importance • ensuring people who depend on fishing can of locally sourced seafood for industry, personal maintain their livelihoods – fishing must comply and Aboriginal cultural use, although one-in- with relevant laws and be able to adapt to five participants viewed fishing as a threat. The changing environmental circumstances.19 statewide TARA also identified some commercial and A healthy marine ecosystem relies on good water quality recreational fishing activities as a threat to particular (Initiative 1) and healthy habitats (Initiative 2) in harmony environmental assets. Threats were identified to with sustainable harvest and minimising interactions threatened and protected species (see Initiative 5), with threatened and protected species (Initiative 5). deep soft sediment (from trawling) and aquaculture was identified as a threat to seagrass. Threats to fish assemblages were identified (both harvest and 19 What is sustainable fishing? (Marine Stewardship Council). Available bycatch), noting a reduction in species abundance from https://20.msc.org/what-we-are-doing/our-approach/what- and trophic levels. While some reductions in species is-sustainable-fishing 61 HOW WILL THIS MANAGEMENT INITIATIVE Filling knowledge gaps is an important part of this HELP? initiative, which aims to provide a better understanding This management initiative will enhance the management and communication of the effects of harvest, bycatch, of high and moderate risk fisheries through an improved and better reporting of interactions with threatened and understanding of the ecosystem structure and will protected species from high and moderate risk fishing respond to identified threats. It will foster economically sectors. viable, ecologically sustainable commercial, cultural Harvest strategies20 and ecological risk assessments and recreational fishing sectors. This will have flow- (reporting on the broader effects of fishing on the on effects to community through enhanced fishing ecosystem) will be developed to understand and address experiences, improved business viability, freshly changes to fish assemblages and trophic levels. Decision caught seafood for consumers, and positive health and support tools will be applied. Partnering with industry wellbeing outcomes. to build capacity and improve social licence is also an The initiative links to the commercial fishing reforms action. Business Adjustment Program (BAP). The BAP Other management actions will expand or improve introduced linkages between commercial fishers’ shares current programs. An environmental assessment of and resource access, catch or fishing effort; capped recreational fishing and review of recreational fishing the total commercial catch or fishing effort by way of rules will help address identified environmental and catch or effort quotas across a number of fishery share social threats, as well as maximise education, advisory classes; and is streamlining processes such as real-time and compliance regimes. catch and effort reporting. It also supports the post- This management initiative also links to the NSW harvest sector, including co-operatives, supporting jobs oyster industry and several land-based sustainable in regional areas. aquaculture strategies. These strategies detail site and operational requirements, best industry practice, and water quality protection guidelines. They provide a valuable community resource and include the history and operation of aquaculture in NSW and the legislation in place to monitor and regulate the industry. The threat of marine pests and disease is addressed in this initiative (and linked to Initiative 7) as any outbreak will have significant impacts on seafood consumption. Liaison and cooperation with the Commonwealth to mitigate biosecurity threats, will continue. 20 A harvest strategy is a framework that specifies pre-determined management actions in a fishery for a defined species (at the stock or management unit level) necessary to achieve the agreed ecological, economic and/or social management objectives (from National Guidelines to Develop Fishery Harvest Strategies, FRDC 2014). 62 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 6 MANAGEMENT OBJECTIVE : To ensure fishing and aquaculture is managed in a way that is consistent with ecologically sustainable use while providing for the health, heritage and social benefits of fishing and seafood consumption Statewide priority threats Stressors Management actions Estuary general fishery impacts on fish Reduction in abundance of species and trophic levels 6.1 Introduce harvest strategies and evaluate ecological risk in assemblages due to current and historical levels of harvest. partnership with stakeholders and shareholders to address the priority threats associated with the reduction in abundance of Bycatch of a wide range of secondary species as well Ocean trap and line fishery impacts on fish species and trophic levels. as threatened and protected species (e.g. Greynurse threatened and protected species and Shark, Black Rockcod) that results in impacts on 6.2 Conduct an environmental assessment of recreational fishing, communities protected under the FMA population status. periodically review current rules, and take action to improve fish stocks and to address threats associated with harvest, bycatch Physical disturbance from trawling in deep soft and illegal sale of fish. sediment habitats resulting in impacts on biota. 6.3 Explore opportunities for new marine aquaculture ventures. Ocean trawl impacts on deep soft Wildlife disturbance or entanglement from fishing gears sediment and activities. 6.4 Apply best-practice guidelines for seagrass protection in the NSW Oyster Industry Sustainable Aquaculture Strategy. Ocean haul impacts on fish assemblages 6.5 Integrate various commercial, recreational and cultural fishing data and new research into the Monitoring Program to address key knowledge gaps associated with harvest and bycatch. Environment TARA Shore and boat-based recreational line Bycatch of a wide range of secondary species as well and trap fishing (estuaries and offshore) as threatened and protected species (e.g. Greynurse Note: Aboriginal cultural fishing and aquaculture actions are included impacts on fish assemblages Shark, Black Rockcod) that results in impacts on in this initiative and Initiative 4). population status. Reduction in abundance of species and trophic levels due to levels of harvest. Boat-based recreational line and trap Ingestion of and entanglement in fishing gear, and fishing (offshore) impacts on species and impacts on several protected species from specific communities protected under FMA types of traps. Fishing-related litter and marine debris that results in impacts on a range of species. Hand gathering (coast) impacts on fish Harvest of a range of on-reef and rocky shore species assemblages at a level that results in measurable impacts. Oyster aquaculture Physical disturbance to seagrass (Posidonia) from vessel propellers, resuspension of sediment and shading from structures. 63 Statewide priority threats Stressors Management actions Threats include resource use conflict, Stressors affecting community enjoyment, 6.6 Enhance fisheries via targeted fish stocking and other activities to environmental, governance, critical participation and economic viability, both in improve fishing opportunities where appropriate. knowledge gaps and lack of access estuaries and offshore, include: Social, cultural and economic TARA 6.7 Partner with fishing and aquaculture sectors to deliver information and • pests and disease training to fishers in NSW to improve self-compliance and sustainable fishing practices, and develop economic opportunities. • reduction in abundance of species and trophic levels 6.8 Work with fishing sectors and tourism authorities to investigate and implement opportunities to promote fishing and NSW wild caught • habitat disturbance (commercial and seafood and build social licence. recreational fishing methods) 6.9 Deliver advisory programs to the community to reduce the risk of • conflict over resource access and use spread of marine pest and diseases and enhance the understanding • lack of compliance with regulations of everyone’s general biosecurity duty so they act to minimise aquatic pest and disease risk. • loss or decline in marine industries • loss of access (government area closures). 64 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 MANAGEMENT INITIATIVES 7. Enabling safe and sustainable boating WHAT ARE THE COMMUNITY BENEFITS? Recreational boating brings significant social, cultural, Commercial vessels provide valuable services to the and economic benefits to the NSW community. An community and include ferries, tourism charter vessels estimated two million people go boating in the NSW such as whale watching vessels, tugboats, houseboats, marine estate each year.21 various government vessels used for research and The benefits from recreational boating are reliant on compliance, and commercial fishing vessels. adequate land–water interface amenities, either through There are approximately 1,500 commercial vessel land-based infrastructure (such as boat launching ramps, operators throughout NSW, operating approximately pontoons, jetties, wharves, boat storage facilities, pump 2,000 vessels: most operate on the coast. About one- out facilities), or water-based infrastructure (such as third of these are based in the Sydney metropolitan navigation aids, moorings and marinas). area. Another 80 vessels are in the greater Sydney area, The social benefits of boating include health and including Hawkesbury River and Brisbane Waters; the wellbeing benefits of physical exercise, enjoyment, rest operate mostly, but not exclusively, on the coast. socialising with family and friends, competitive sports Two million passengers are carried on Sydney Harbour such as boat and yacht racing, and the opportunity to each year, and more than double that number are carried enjoy the beauty of the NSW marine estate. on vessels throughout the State. The total turnover of the industry is estimated to be around $600 million each The economic benefits are also significant: approximately year.22 13,000 people are employed in the boating industry in NSW; up to $2 billion of direct revenue is generated 21 Social and economic background information report on the NSW marine estate (Vanderkooi Consulting for MEMA 2015). and a further $1.38 billion in indirect spending has been 22 Industry Facts (Commercial Vehicle Association 2017), available from estimated as a result of recreational boating activities. http://cvansw.org.au/industry-facts/ 65 NSW’s ports provide a critical link between the landside impacts on current employment or production are and seaside elements of the supply chain and play a key due to the lack of access infrastructure, as businesses role in supporting the growth in all import and export can operate only where there is access (and therefore trade. The major ports are Port Botany, Port Jackson, customers). Port Kembla and the Port of Newcastle, together The statewide TARA identified threats associated with contributing some $4 billion to NSW’s Gross State boating and boating infrastructure in the marine estate. Product.23 These include the lack of access to the marine estate Marinas also play an important role. They provide as well as the impacts of small commercial vessels, social benefits through their direct services to the recreational boating and boating infrastructure on public (such as fuel, pump out facilities, chandlery, environmental assets and social, cultural and economic boat repair and maintenance) and community events benefits. This initiative seeks to balance a growing (such as ‘try sailing’ days), and waterway accessibility. interest in boating with continued protection of the They contribute to the economy through purchasing marine estate’s environmental assets. This initiative also products and services, employing staff, renting spaces links to Initiative 5, which addresses collisions and vessel to business tenants, engaging contractors and paying disturbance to threatened and protected species. lease payments and taxes. NSW marina operators invest in capital expenditure to enhance the quality, diversity HOW WILL THIS MANAGEMENT INITIATIVE and accessibility of maritime facilities and services HELP? that directly contribute to the economy and provide This initiative addresses the priority threats identified additional boat storage capacity (such as berths and in the statewide TARA. It tackles sources of vessel pens, moorings, dry stack or hard stand). pollution and seeks to ameliorate impacts on threatened NSW’s rich maritime heritage is a reflection of the and protected species. Several actions build on existing reliance on boating for trade, transport and defence programs, such as the Boating Now Program, to improve historically. Approximately 1,800 shipwrecks exist in access and boat storage, and the Moorings Review, the NSW marine estate, including a World War One to reduce impacts on sensitive seafloor habitats such battlecruiser, HMAS Australia (1910–1924); a Japanese as seagrass. Improved reporting and data sharing type A midget submarine, M24 (1942); Scottish clipper opportunities are proposed to fill knowledge gaps, linking ships and colonial trading vessels; steamships; and with Initiatives 5 and 9. harbour craft. Jetties, wharves, shipyards, pilot stations, The initiative also continues to support Commonwealth lighthouses and port facilities are also an integral part of agencies. The Australian Maritime Safety Authority Australia’s maritime history. (AMSA) is leading a national effort to educate the maritime community about the impacts on marine WHY IS THIS MANAGEMENT INITIATIVE wildlife from collisions. In NSW, AMSA is partnering with NEEDED? Organisation for the Rescue and Research of Cetaceans The Community Survey revealed the lack of access in Australia (ORRCA) Whale and Seal Rescue for incident to the marine estate is a threat to social cultural and reporting. AMSA is supported in raising public awareness economic benefits. The benefits from recreational and communicating existing measures that regulate boating depend on adequate accessible land–water vessel and wildlife interactions. This initiative also interface infrastructure for all user groups. complements the Maritime Safety Plan 2017-2021. It is forecast that vessel ownership in NSW will continue to grow, placing increased pressure on the need for boat storage and waterway access infrastructure. Negative 23 NSW Port Network (Transport NSW 2017), available from https://www.transport.nsw.gov.au/operations/logistics-network/nsw-port-network 66 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 7 MANAGEMENT OBJECTIVE : To balance protection of coastal and marine habitats and species with ongoing access and safe and sustainable boating Statewide priority threats Stressors Management actions Boating and boating infrastructure – affects Physical disturbance of Posidonia seagrass and 7.1 Reduce the threats to seagrass from vessels through improved water, seagrass, beaches and mudflats, other seagrasses due to physical scouring of habitat regulation, administration, education, new mooring technologies shallow soft sediment and species and resulting in impacts. and delivery mechanisms. communities protected under the FMA and Wildlife disturbance from activity and vessel 7.2 Establish a framework to manage increased mooring demand BCA collisions. through the Moorings Review program. Marine debris and a range of water pollution 7.3 Manage boat-based contamination through the AMSA national stressors, particularly copper pollution and framework and implement an education program in NSW to antifouling paints. address the environmental impacts of water pollution from Environment TARA recreational vessel cleaning, anti-fouling and sewage pump out into waterways. 7.4 Partner with industry to investigate a pilot program at marinas in Small commercial vessels (e.g. ferries, charter Physical disturbance and wildlife disturbance of NSW to design and install sump drain runoff handling systems boats, commercial fishing, whale watching) on threatened and protected species, principally from with sediment traps. species protected under the BCA vessel collisions and noise. 7.5 Improve awareness of threats to threatened and protected species, and compliance with regulations, through data sharing, education, social research and compliance planning to reduce impacts of boating. This links to actions in Initiatives 5, 8 and 9. 7.6 Integrate research and monitoring into the Monitoring Program to address key knowledge gaps associated with shipping movements and interactions with threatened and protected species. Lack of access Limited or lack of access infrastructure to the 7.7 Continue improving environmentally sustainable boating and Social, cultural and economic TARA marine estate reduces the ability to participate in a resolve conflicting uses and waterway access to the marine range of activities in the marine estate and affects estate through the NSW Boating Now Program. participation, enjoyment and viability of businesses. 7.8 Deliver waterways infrastructure in accordance with the Maritime Safety Plan to enhance social, cultural and economic benefits through an interagency approach (also see Initiative 8). Governance Inadequate, inefficient regulation and overregulation (agencies) affects participation, enjoyment and viability of businesses. 67 MANAGEMENT INITIATIVES 8. Enhancing social, cultural and economic benefits WHAT ARE THE COMMUNITY BENEFITS? WHY IS THIS MANAGEMENT INITIATIVE The community derives many social, cultural and NEEDED? economic benefits from the NSW marine estate. Social This initiative addresses threats to community benefits benefits include socialising, health and wellbeing, a by considering threats to social, cultural and economic sense of community, and enjoying the biodiversity and benefits alongside environmental benefits. This triple- beauty of the marine estate while swimming at the bottom-line approach to threat and risk assessment is beach, recreational boating, fishing, kayaking or diving. part of the marine estate reform process. This is the Cultural benefits include Aboriginal cultural heritage first time this approach has been used in NSW, and it and use benefits such as food sources, traditions and will improve strategic planning and management for the spiritual values. Economic benefits include those from marine estate, now and into the future. running a business (such as whale watching, scuba diving The Community Survey conducted in 2014 highlighted or commercial fishing). Indirect values include intrinsic the intrinsic value of a healthy marine estate as well (valuing regardless of direct use) and bequest values its value as providing an income, particularly through (knowing it’s protected for future generations). The tourism and seafood industries. It also identified conservation and enjoyment of marine historic heritage antisocial behaviour as the number one threat to social and non-Aboriginal cultural heritage also provides social, benefits, followed closely by overcrowding, conflict cultural and economic benefits to the NSW community. of use (such as danger to swimmers from recreational activities such as boating and jet skiers) and a lack of public access. Perceived threats to economic viability were associated with water pollution, loss of natural areas, and increasing cost to access the marine estate. 68 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 CASE STUDY 2 - THE GLOBAL BLUE GROWTH ECONOMY STR ATEGIC AND SUSTAINABLE GROWTH IN THE MARINE AND MARITIME SECTORS The global maritime economy is growing. It is also changing In addition, the general lack of awareness or community from a reliance on fishing and shipping towards emerging engagement on current management of the marine industries such as aquaculture, offshore renewables and estate was noted as a key concern in the Community cruise tourism. The European Commission estimated that Survey. These were also findings of the statewide TARA. by 2030, this ‘blue economy’ is expected to be worth more than EUR 1.3 trillion in terms of value adding and employment, more than double its current value. HOW WILL THIS MANAGEMENT INITIATIVE HELP? THE EUROPEAN UNION’S SOLUTION: This initiative will improve understanding of current and A BLUE GROWTH STRATEGY future use of the marine estate and identify specific The 2012 Blue Growth Strategy was developed by the management responses to address priority threats European Union (EU) to build on this growth and create associated with anti-social behaviour, unsafe practices, the conditions for a thriving maritime economy. The focus loss of public access and resource-use conflict. This is on five economically and environmentally sustainable action also links to Initiative 6 and 7 in gathering fishing growth sectors with innovation and jobs creation potential: and boating activity data, trends, opportunities and aquaculture, coastal tourism, marine biotechnology, management issues. ocean energy and marine mineral resource sectors. Other management actions include improved awareness Other initiatives focus on key ‘enablers’ of growth such as data of the marine estate by building on community education and information, research, spatial planning, skills, environmental protection and maritime surveillance; policies to tackle and awareness programs and developing best practice market failures; funding instruments; promoting partnerships guidance and codes of practice to support environmental between governments and between the public and private stewardship and self-compliance. Education and sector; and developing market opportunities worldwide. awareness is highlighted across several management Initiatives: Initiative 5 aims to increase awareness of BLUE GROWTH OPPORTUNITIES IN NSW threats to threatened and protected species; Growth in the blue economy presents a significant opportunity Initiative 7 is associated with educating the boating for the NSW Government, both economically and in terms community about environmentally sustainable boating of community wellbeing. The long-term potential for practices. innovation, jobs and economic growth are considerable, The Marine Integrated Monitoring Program supports but there are risks associated with any development. Responsible and appropriate sustainable approaches evidence-based decision-making and adaptive to economic development are therefore needed. management by addressing knowledge gaps, developing a shared understanding of community benefits derived All sectors of the NSW economy support the marine economy from the marine estate, tracking the impacts of threats in some way. Initiative 8 proposes to develop a blue growth to those benefits and effectiveness of management. This strategy. This provides opportunities to holistically consider marine industries rather than individual sectors evolving in action links directly to all other initiatives in the Strategy isolation. Development of the blue growth strategy will involve and also provides the key mechanism for evaluating the working collaboratively with industry to scope opportunities for effectiveness of the Strategy in delivering its objectives. marine sectors offering greatest potential for sustainable growth. This initiative will work collaboratively with marine industries (such as fishing, aquaculture, offshore renewables and marine tourism – see Initiatives 6 development will be critical to realising blue growth’s and 7) to develop a blue growth strategy (see Case full potential. This action links in particular to Initiatives Study 2).24 The strategy will scope opportunities for 1 and 2 due to the interdependence between good marine sectors to enable ecologically sustainable growth. water quality, healthy marine and coastal habitats and Blue growth will not only contribute to the NSW thriving maritime sectors. It also links to Initiative 6 with economy but also support wider community wellbeing regard to aquaculture development and Initiative 7 for objectives. The long term potential for innovation, jobs sustainable boating growth. and economic growth are considerable, but responsible and appropriate sustainable approaches to economic 24 Blue Growth Strategy establishes the long term strategic and sustainable growth in the marine and maritime sectors 69 8 MANAGEMENT OBJECTIVE : To improve the social, cultural and economic benefits that the NSW community derives from the marine estate by responding to priority threats Statewide priority threats Stressors Management actions Governance of the marine estate Lack of community awareness of the marine 8.1 Increase stakeholder and community awareness of marine estate values, estate, associated threats and benefits; management arrangements and promote safe and ecologically sustainable use regulation and opportunity for participation. of the marine estate by: • building on existing school and community education programs to encourage Critical knowledge gaps Inadequate social, cultural and economic environmental stewardship, enhance self-compliance and promote physical information limits the ability to address and mental health benefits associated with nature identified threats. • developing and promoting best practice guidance / codes of practice to Lack of access availability Loss of public access (either by private reduce resource use conflicts (also see action 8.4) development or government area closures) and • developing online information resources and expansion of digital limited or lack of access infrastructure to the technologies. marine estate reduces the ability to participate in a range of activities in the marine estate. 8.2 Improve awareness of, promote and identify threats to marine historic and non- Aboriginal cultural heritage to inform future management in the marine estate. Social, cultural and economic TARA This action is linked to Initiative 4. Resource-use conflict Non-compatible uses of the marine estate 8.3 Establish and deliver the Marine Integrated Monitoring Programs social, cultural cause stressors such as increased conflict over and economic components, to: resource use, and loss or decline in marine industries. Other stressors include antisocial • develop a shared understanding of the NSW community’s attitudes, values, behaviour and unsafe practices, overcrowding perceptions, experiences, knowledge, aspirations, patterns of use to support and congestion, which decrease beach evidence-based decision-making and adaptive management amenity and ability to utilise and enjoy the • communicate data / results publicly through appropriate information portals. marine estate. 8.4 Develop a baseline of current and future use of the marine estate, initially at a pilot scale, to support effective management, address resource use conflicts and access to the marine estate by: • carrying out a comprehensive analysis of human use activities, supporting infrastructure and facilities, activity trends, management issues • spatially mapping on a public facing digital platform • identifying hotspots and developing specific management responses to address issues in partnership with agencies and stakeholders • linking outcomes to education and awareness programs to promote best practice (also see action 8.1). 8.5 Explore opportunities for innovative ecologically sustainable activities in the marine estate, based on the results of activity mapping in action 8.4, by developing a blue growth strategy. 70 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 MANAGEMENT INITIATIVES 9. Delivering effective governance WHAT ARE THE COMMUNITY BENEFITS? WHY IS THIS MANAGEMENT Good governance ensures that effective and efficient INITIATIVE NEEDED? processes are in place for developing and implementing The statewide TARA highlighted the complexity of decisions that lead to positive benefits for community current management arrangements, including regulatory wellbeing. Participation in decision-making can lead to processes, lack of user compliance with regulations, and stakeholder and community empowerment and joint a lack of compliance effort by agencies. Together with ownership so projects meet real needs and priorities. limited community awareness of the marine estate and participation in management, all these factors affect the Ultimately, effective governance ensures the long- community benefits derived from the marine estate. term ecological sustainability of initiatives. Delivering coordinated governance in the marine estate will ensure Responsibility for management of the NSW marine decision-making is participatory, effective, efficient, estate is complex. It is spread across a number of equitable and consistent with relevant legislation. government departments and agencies, potentially posing a significant threat to effective governance. 71 In response to the Independent Scientific Audit of HOW WILL THIS MANAGEMENT Marine Parks in 2012, the NSW Government established INITIATIVE HELP? a new integrated governance structure to support This initiative addresses the threats identified in the improved co-ordination, efficiencies and evidence-based statewide TARA. It enhances existing management decision-making. The marine estate reforms commenced arrangements to further improve governance structures with the enacting of the Marine Estate Management Act and support integrated management of the marine 2014 and the creation of the Authority and the Panel to estate. support delivery of the reforms. Commonwealth, State and local government will work Although the new multi-agency structure has gone collaboratively to co-ordinate management of the marine some way towards achieving improved co-ordination estate, clarifying roles and responsibilities and reducing across the marine estate, more is needed, in particular to inconsistencies and duplication. coordinate responses with other programs and reform Stakeholders and communities will be provided with processes, and with native title considerations and capacity building tools to enable greater involvement in interests. marine estate management and decision-making. Greater understanding and reduced complexity of the regulatory processes will be delivered through a regulatory review. Improved co-ordination and awareness of compliance will reduce resource-use conflict. 72 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 9 MANAGEMENT OBJECTIVE : To improve governance arrangements across the marine estate to support coordinated, transparent, inclusive and effective decision-making Statewide priority threats Stressors Management actions Governance of the marine estate Inadequate, inefficient regulation and 9.1 Improved co-ordination and integration across all levels of government overregulation (agencies) diminish how the (including cross-border and the land–sea interface) by developing a marine estate is managed or is perceived to be governance framework piloted at a catchment scale (see Initiative 1) to: managed. Lack of compliance with regulations • identify overlapping jurisdictional boundaries (by users) or lack of compliance effort (by agencies). Lack of, or ineffective community • clarify roles and responsibilities engagement or participation in governance. • align policies and programs • Identify opportunities for: - data management and sharing - research, monitoring and mapping - compliance and reporting Social, cultural and economic TARA - communication and engagement. 9.2 Increased stakeholder and community participation by building capacity and awareness of coastal and marine management, piloted at a catchment scale (see Initiative 1) and locally via marine park management planning pilots. 9.3 Identify opportunities through the marine park management planning pilots projects to streamline regulatory instruments to: • address inconsistencies, reduce duplication of effort, and reduce regulatory burden where appropriate • ensure these instruments are efficient, effective, transparent and proportionate • increase awareness of the authorisation process and requirements for the end user through education and online tools. 9.4 Improve co-ordination and effectiveness of compliance across government by: • investigating tools to support proactive compliance by users through use of new technologies and education programs (see Initiative 8) • collaborate across multiple government agencies to co-ordinate enforcement, education and data sharing. 73 How will we know if we are delivering on our vision? The Monitoring Program will measure Monitoring environmental assets and social, cultural and economic benefits that were identified by and report on progress towards achieving the statewide TARA as being under moderate, key performance indicators for the nine high or cumulative risk from human activities management initiatives to guide adaptive will inform evaluation of the Strategy. management as well as fill knowledge gaps The Monitoring Program will include: identified in the Statewide TARA. • short, medium and long-term monitoring – to There are three key purposes of the Monitoring Program: examine the condition of assets and benefits, and extent of impact on, and reduction of 1. to monitor the condition and trend of environmental risks to community benefits over time assets and community benefits against components of the vision to inform the five-year health check • citizen science monitoring – volunteer monitoring and observations of condition of 2. to evaluate the effectiveness of the management environmental assets and presence of species. initiatives and actions that aim to reduce priority threats and risks Key performance indicators in the Strategy’s Implementation Plan are linked to the Monitoring 3. fill knowledge gaps that were identified as part of the Program. They relate to ecological assets (such statewide TARA process. as seagrass beds and coastal habitats), social, cultural and economic benefits (such as wellbeing) as well as threats and associated stressors. 74 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 A network of organisations that use or generate monitoring data or reporting products are engaged in the development of the Monitoring Program. This includes Authority agencies, research providers, universities and local government. The community will also support marine monitoring through existing and new citizen science programs. Reporting timeframes for Monitoring Program activities will depend on NSW Government requirements. Performance information and milestones will be reported to stakeholders and agencies, and access to data streams will adhere to the NSW Government’s Open Data Policy. The program will provide annual progress reporting and a comprehensive review every five years as part of the five-year health check. The five-year health check will include an evaluation of the Monitoring Program outputs to assess if priority threat risk level have changed, as well as consider new evidence. Management will be adapted accordingly. 75 APPENDIX Glossary of terms These terms are used consistently by the Authority in the delivery of their priority actions and initiatives with the Schedule of Works. TERM DESCRIPTION activity something occurring in the marine estate. This may be a community benefit and/or a threat to an environmental asset or social, cultural or economic values, for example, boating, fishing, dredging or shipping asset the physical features of the marine estate, but does not include people. There are three main types of assets: • environmental assets – the natural attributes, components and living resources of the marine estate for example habitat (e.g. beaches or rocky shores) or threatened species • cultural assets – structures, places or associations that form or contribute to cultural identity • infrastructure assets – functional structures installed for people to use and interact with the marine estate benefit see ‘community benefit’ community benefit anything that contributes to the wellbeing of the community. There are three separate categories of community benefits: economic, social and environmental benefits. Many community benefits are based on what people think is important (what they value). A community benefit of the marine estate could be: • swimming at the beach • boating in an estuary • doing something as a hobby (e.g. fishing, kayaking, surfing, bird watching, etc.) • running a business (e.g. whale watching business, charter fishing, commercial fishing, etc.) • clean waters and marine biodiversity • intrinsic values i.e. valuing the environment regardless of direct benefits. The Marine Estate Management Act 2014uses the term ‘community value’ for this community wellbeing the overall aggregate of economic, social and environmental benefits community this is considering the benefits and costs to the community as a whole rather than a particular user wellbeing lens group, sector or industry consequence the result of something happening, including a change in circumstances affecting objectives. It can be certain or uncertain and have positive or negative effects on objectives. A consequence can be expressed qualitatively or quantitatively cumulative impact, the impact (positive or negative) resulting from the effects of one or more impacts, and the threats or risks interactions between those impacts, added to other past, present and reasonably foreseeable future pressures cultural use the use of the marine estate to demonstrate or perform skills, arts, beliefs and customs and to pass these on from one generation to the next ecological the relationship between organisms and their environment economic the production, distribution, and use of income, wealth, and commodities economic benefits benefits derived by the community from the marine estate that are of an economic or financial nature effect a deviation from the measured status. Effects can be positive or negative environmental benefit benefits derived by the community from an environmental asset evaluation The process of determining the worth or significance of a management activity, policy or program. It will report on the relevance of objectives, the efficacy of design and implementation, the efficiency of resource use, and the sustainability of outcomes. An evaluation should enable the incorporation of lessons learned into the decision-making process of all stakeholders evidence relevant and credible information sources relating to threats and risks (environmental, social or economic) such as scientific research or reports, unpublished data/research or supporting background reports 76 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 TERM DESCRIPTION impact the outcome of the direct or indirect effect of activities and natural events on the assets or values of the environmental, social or economic components (i.e. pressure + response) key stressors these are stressors that are responsible for impacts on environmental assets and related risks to community benefits e.g. an activity such as storm water discharge can adversely impact environmental assets through several key stressors, such as water pollution, marine debris and sediment contamination likelihood the chance of something happening marine estate as defined in the Marine Estate Management Act 2014means: • the coastal waters of NSW within the meaning of Part 10 of the Interpretation Act 1987 • estuaries (being any part of a river whose level is periodically or intermittently affected by coastal tides) up to the highest astronomical tide • lakes, lagoons and other partially enclosed bodies of water that are permanently, periodically or intermittently open to the sea • coastal wetlands (including saltmarsh, mangroves and seagrass), lands immediately adjacent to, or in the immediate proximity of, the coastal waters of New South Wales that are subject to oceanic processes (including beaches, dunes, headlands and rock platforms) • any other place or thing declared by the regulations to be the marine estate • but does not include any place or thing declared by the regulations not to be the marine estate monitoring A systematic collection of data on specified indicators to provide the main stakeholders of an ongoing management action with indications of the extent and trend of progress towards achievement of objectives. Monitoring can be at numerous scales and can include measures of inputs, activities, outputs, outcomes and impacts of management activities at the project and program levels. The Authority’s Monitoring Program also includes systematic collection of data (including through research) to address knowledge gaps open access resource resources that can be accessed by anyone at any time opportunity a time, set of circumstances or activity that makes it possible to improve community wellbeing over-exploitation harvesting species or resources at rates faster than natural populations or resources can recover priority threat those threats that have the greatest risk of producing adverse effects on the flow of benefits from the marine estate. A threat was considered to be a statewide priority if it had a high or moderate risk level for each of the three regions across the state (i.e. north, central and south). Risk levels of high or moderate in only one or two regions lead to those threats being identified as regional priorities priority risk is a term used in the NSW Marine Estate Threat and Risk Assessment Draft Report and refers to a risk level of high or moderate quality of evidence a rating of the quality of available evidence e.g. adequate, limited or inferred to convey the level of confidence in the knowledge and deal with uncertainty and/or absence of evidence region the section of NSW that the TARA has been applied to. North region is from Tweed Heads to Stockton, Central region from Stockton to Shellharbour and South region from Shellharbour to NSW/Victorian border residual risk the risk remaining after taking current management efforts into account (these efforts are called risk treatment or risk management) resilience the maximum change (or disturbance) that can occur before a population or system can no longer resist it or recover from it. The change (or disturbance) can be: • ‘pulse’ – an acute, short-term change that results in a temporary response • ‘press’ – a sustained or chronic change that could cause a long-term response • ‘catastrophic’ – a major, long-term change from which a population or system is unlikely to recover 77 TERM DESCRIPTION resource use resource uses and activities resulting in stressors to environmental assets arising from these activities e.g. recreational fishing resource use conflict disagreements and disputes over access to and control of natural resources risk the chance of something happening that will have an impact on achieving environmental, social or economic objectives risk analysis a process to comprehend the nature or level of risk risk assessment overall process of risk identification, risk analysis and risk evaluation risk context the internal and external environment in which the government and broader community seek to achieve their objectives risk criteria terms of reference against which the significance of a risk is evaluated. They are based on objectives and risk context and can be derived from standards, laws, policies and other requirements risk evaluation the process for deciding whether the risk and its magnitude are acceptable or tolerable. The evaluation does this by comparing the results of risk analysis to agreed criteria risk identification process of finding, recognising and describing risks. It involves the identification of risk sources, events, their causes and potential consequences. It can draw on historical data, analysis, informed and expert opinions, and surveys of stakeholder needs risk level magnitude of a risk or combination of risks, generally expressed in terms of the combination of consequences and their likelihood e.g. high, moderate, low or minimal risk management coordinated activities to direct and control threats with regard to risk risk management a set of components that provides the foundations and management arrangements for designing, framework implementing, monitoring, reviewing and continually improving risk management. risk owner the agency or stakeholder with the accountability and authority to manage a risk risk perception a stakeholder’s view on a risk risk treatment a process to modify the risk (e.g. avoiding it, removing the source, changing the likelihood or consequences, sharing the risk or retaining and managing the risk by informed decisions). Management controls introduced by government are examples of risk treatments social of or relating to the life and relations of people in a community social benefits the social and relational benefits the community derives from the marine estate social and economic also called community benefit, this is anything that contributes to the wellbeing of the community benefit spatial extent the scale of the risk of the threat to a benefit being realised e.g. local, regional or statewide stakeholder a person, organisation (including agencies) that can affect, be affected by, or perceive themselves to be affected by a decision or activity 78 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 TERM DESCRIPTION stressor a consequence of an activity (e.g. water pollution, overcrowding) that causes an effect on an environmental asset (e.g. clean waters) or social and economic benefit (e.g. recreation and tourism activities at a local beach or waterway). Different activities may lead to the same stressors (e.g. foreshore development and dredging activities can produce different forms of water pollution if not managed effectively) temporal scale the timeframe in which the risk of the threat being realised will occur e.g. 1- 2 years, 10 years or 20 years threat a broad activity, event or process that poses a potential level of risk to an environmental asset or social or economic benefit. Threats often affect multiple assets/benefits and similarly, an asset/ benefit may be affected by multiple threats threat and risk a process that identifies, assesses and prioritises threats and their associated risks to the marine assessment estate. It also highlights areas where information is lacking and research is needed trade-off the relinquishment of one benefit or value for another that is regarded as more desirable or of greater importance trend how a threat varies over time e.g. increasing, decreasing or stable value the term used by the Marine Estate Management Act 2014for ‘community benefit’ 79 80 NSW MARINE ESTATE MANAGEMENT STRATEGY 2018–2028 Published 2018 by the NSW Marine Estate Management Authority: • Dr Wendy Craik AM, Chair • Secretary, NSW Department of Industry • Chief Executive, NSW Office of Environment and Heritage • Secretary, NSW Department of Planning and Environment • Secretary, Transport for NSW • Professor R. Quentin Grafton, Chair, Marine Estate Expert Knowledge Panel. The NSW Marine Estate Management Authority is advised by the Marine Estate Expert Knowledge Panel. The Authority was established by the NSW Government in 2013 to advise on policies, priorities and directions for the NSW marine estate. The NSW marine estate includes marine waters, estuaries and the coast from the Queensland border in the north to the Victorian border in the south. It extends seaward out to three nautical miles. The full definition and map can be found at www.marine.nsw.gov.au. This Strategy and background reports are also available at www.marine.nsw.gov.au. ISBN: 978-1-76058-221-0 Front cover: iStock.com/egal. Images courtesy of: Colin Cooksey, Duncan Paterson. NSW Department of Planning and Environment, NSW National Parks and Wildlife Service: Geoffrey Ross, NSW Office of Environment and Planning: John Spencer, Transport NSW. NSW Department of Primary Industries: Brett Vercoe, David Barnes, David Harasti, Graeme White, Jennifer Grant, Hamish Malcolm, Laura Hutton, Louise Roberts, Michelle O’Leary, Nicola Johnstone, Patrick Dwyer, Renata Pronk, Sarah Fairfull, Stephen Ward, Tim Glasby, Joe Nielson. iStock.com/ AnaDruga, Bicho-raro, Corina Cohen, egal, fergregory, funky-data, helovi, JohnCamemolla, KarenHBlack, master2, naravikk, PeopleImages, PomInOz, Sunnypics-oz, yangwenshuang Artwork: Tony Hart, iStock.com/Kira_an. Icons made by Freepik from www.flaticon.com. Cm9 reference: INT17/252955 © State of New South Wales through Department of Industry (2018). You may copy, distribute and otherwise freely deal with this publication for any purpose, provided that you attribute the NSW Marine Estate Management Authority as the owner. Disclaimer: The information contained in this publication is based on knowledge and understanding at the time of writing. However, because of advances in knowledge, users are reminded of the need to ensure that the information upon which they rely is up to date and to check the currency of the information with the author or the user’s independent adviser.