Great Barrier breakthrough
By Phil Dickie
December 4, 2003
Marine explorer and environmentalist Jean-Michel Cousteau has been urging it and the public face of international conservation, David Attenborough, is delighted at how "the Australian people are increasing protection for one of the natural wonders of the world".
The green lobby describes it as a remarkable success, while David Kemp, Australia's low-profile Environment Minister, is being credited for his courage. And up and down the Queensland coast, map reading has suddenly become the most popular pastime.
Yesterday's tabling in federal parliament of new zoning maps of the Great Barrier Reef has created the largest network of protected marine areas in the world. Just more than one-third of the Great Barrier Reef Marine Park is scheduled to be declared pink (no-go) or green (no-take) zones, or the marine equivalent of national parks.
Large additional areas are to be off-limits to commercial fishing, while a new yellow zoning - you can fish from a tinny but not from a trawler - introduces one-line, one-hook restrictions on recreational anglers. The area open to virtually any use except oil exploration is to be slashed from more than three-quarters of the park area to just more than one-third.
The increased protection - up from only 4.7 per cent of the reef with marine national park level protection, most of which is in the inaccessible far north - is being heralded internationally as a stunning scientific and political achievement.
While natural history broadcaster Attenborough has hailed the decision, Canadian and other governments are keen to apply the precedents and techniques to protecting their own coasts and fisheries. And Kemp is in the unfamiliar position of having the world's largest conservation group commend him for his "leadership, courage and determination in bringing this plan to fruition".
"It has been a huge battle, but I don't think you can say enough about what this means at the international level," says World Heritage expert Peter Valentine, a member of the International Union for the Conservation of Nature's World Commission on Protected Areas. "Most coral reefs around the world are seriously damaged, so this is of enormous importance to their preservation and survival."
It is a far cry from the early days of Queensland's Bjelke-Petersen government, when the Great Barrier Reef was seen as a handy source of lime for adjacent canefields and a promising prospect for oil exploration and drilling. Some of that legacy is only just coming to an end. The areas covered by the new zoning plans include 28 coastal enclaves extending up to 5km out to sea, which had been excluded from the marine park since its inception to forestall possible commonwealth interference with any of Joh Bjelke-Petersen's grandiose coastal development proposals.
The rezoning of the nearly 2000km-long reef - the culmination of 10 years of study and investigation - is also notable as the largest public consultation by a commonwealth authority and, most likely, the largest by any Australian government. Nearly 31,500 submissions were received, more than twice the number during the contentious Sydney second airport tussle.
There is strong international interest in how the Great Barrier Reef Marine Park Authority and Australian scientists handled an immense amount of technical and social information down to the so-called highly confidential revelations of favourite fishing spots in submissions, sorted it through state-of-the-art positioning and mapping technologies and stayed true to the scientific and social objectives of the project.
Among the many spin-offs expected from the project - healthier and more resilient reefs, more fish and happier tourists - scientists also expect a modest but significant export market in their hardware, software and expertise.
University of Queensland ecologist, mathematician and project adviser Hugh Possingham says the Australian experience is "about five years ahead of what they have been just talking about doing" in the Gulf of California in Mexico's Baja California.
Kemp rejects any talk of fundamental compromises in the thousands of changes between the draft and final zonings. "The scientific operating principles haven't been compromised and at the end of the day we have a plan that will be owned by most of the communities up the coast."
The principles required minimum protection levels of 20 per cent for each of 70 reef and non-reef bio-regions. The reserves had to be big enough and sufficiently connected to function ecologically, and the mappers had to minimise the social and economic costs.
"If you pick out sites and ignore economic and social factors, you just get into fights," Possingham says. "And if you go out of your way to avoid fights, you do what we have done on the land, which is to conserve large areas of desert and rocky hills and salt lakes that no one else wants."
World Wide Fund for Nature Great Barrier Reef campaigner Imogen Zethoven says: "We can quibble over individual areas and we do, and we can agree with the scientists who say that 50per cent protection would be better than 30 per cent, but at the end of the day you have to say that what the Government has achieved here is remarkable."
But expect some discontent when the fine detail of the maps percolates through to local communities. The most heat - and some light - will come from what is becoming known as the Battle of Repulse Bay, a large indent in the coast south of the Whitsundays. In the draft plans the significant dugong and fish-breeding area turned green and yellow and was protected from trawling and netting.
However, outspoken Great Barrier Reef Marine Park Authority critic and National Party member for Dawson De-Anne Kelly weighed in to support commercial fishermen. The final zoning, as expected, lets the trawlers and nets back into much of the bay.
Recreational fisherfolk, tourism operators and some local councillors who neither fish nor run tours are outraged, and Kelly is in the unusual position of being more local target than local hero to a large lump of her electorate.
David Hutchen, who operates Fantasea cruises from Airlie Beach and is the chairman of the Association of Marine Park Tourism Operators, says Kelly's "carry-on to protect a very few people has everyone in this area not involved in commercial fishing aghast. I'll try and make sure it rebounds on her and I'm one of her supporters."
Kelly, for her part, was relying heavily on the defence that it was the marine park authority that made the decisions, not her. "Repulse Bay is getting a large green zone in the middle of it and the zoning on that bay is significantly tighter than it was," she says.
The new mood up the Queensland coast and the new political possibilities for conservation reflect shifting economic realities as much as anything. The tourism industry, a strong advocate of increased protected areas, is telling anyone who will listen of the Productivity Commission findings that tourism employs 47,000 people and is worth $4.2billion, while commercial fishing is a $123million industry employing 641.
The rezoning decisively breaks the pattern where loud lobbies have been able to use the Queensland coast, which includes a string of marginal seats at state and federal levels, as a tool to frighten nervous governments of all political colours and levels away from effective action on reef issues.
Queensland's Labor Government, technically a member of the marine park authority, lent no support to the rezoning project, even going so far as to exclude the authority's consultative brochures from Queensland National Parks offices.
As for the marine park authority, in just a few years it has gone from being an utterly demoralised organisation in danger of disbandment to being just about the most motivated agency in the country. The next task is enforcement of the new barriers. Misbehaving trawler skippers are being hauled into court at unprecedented rates. And there will be no repeats of the situation where a CSIRO team doing green-zone research in the 1990s famously noted it was sharing the waters with up to 50 trawlers fishing illegally.
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