shouldgoorooyarroo,’mulligans’flat,’mount’majuraand … · 2.4 global best practice...

Should Goorooyarroo, Mulligans Flat, Mount Majura and Mount Ainslie become a National Park or remain as discrete Nature Reserves as part of Canberra Nature Park?

Advice for the Office of the ACT Commissioner for Sustainability and the Environment

Ian Pulsford in association with Global Learning Pty Ltd PO Box 6302 O’Connor ACT 2602

March 2011

Page i

Acknowledgements

I wish to acknowledge discussions with Dr David Shorthouse and Rainer Rehwinkel who provided invaluable background information, while preparing this report.

Front Cover

View across Mulligans Flat Woodland Sanctuary towards Black Mountain. The Sanctuary protects grassy box-gum woodlands ecosystems of national ecological significance (photo: I. Pulsford)

This report should be cited as:

Pulsford, I. (2011) Should Goorooyarroo, Mulligans Flat, Mount Majura and Mount Ainslie become a National Park or remain as discrete Nature Reserves as part of Canberra Nature Park? Report to the ACT Commissioner for Sustainability and the Environment, March 2011. 11p.

Page ii

Contents Acknowledgements ......................................................................................................... i Contents .......................................................................................................................... ii 1. Introduction ................................................................................................................. 1 2. Definitions and management framework .................................................................... 1

2.1 Definitions ............................................................................................................. 1 2.2 Management objectives and framework ............................................................... 1 2.3 Reserve establishment and development control ................................................. 2 2.4 Global best practice protected area managment objectives ................................. 2 2.5 Other criteria and considerations .......................................................................... 4

2.5.1 Conservation values and significance ........................................................... 4 2.5.2 Management purpose .................................................................................... 5 2.5.3 Design, size and boundaries ......................................................................... 6 2.5.4 Uses and condition ........................................................................................ 6 2.5.6 Threats ........................................................................................................... 6 2.5.7 Connectivity ................................................................................................... 6

3. Discussion .................................................................................................................. 9 3.1 Advantages ........................................................................................................... 9 3.2 Disadvantages .................................................................................................... 11

4. Conclusions .............................................................................................................. 12 5. Recommendations .................................................................................................... 13 References ................................................................................................................... 14 Attachment 1: Management objectives for Canberra Nature Park ............................... 15 Attachment 2: Author’s expertise .................................................................................. 16 Attachment 3: Published papers & reports by the author ............................................. 17

1. Introduction The ACT Office of the Commissioner for Sustainability and the Environment has sought independent advice on whether Goorooyarroo, Mulligans Flat, Mount Majura and Mount Ainslie should become a National Park or remaining as discrete reserves as part of Canberra Nature Park.

In order to provide the advice sought by the Commissioner, a definition of a nature reserve and national park that provides a sound basis for examining advantages or disadvantages of the proposal is desirable. This investigation has identified some issues particular to the unique legal and administrative arrangements specific to the Australian Capital Territory. It is also useful to examine any characteristics of the proposal against global guidelines and standards to reveal if there are any additional advantages or disadvantages and in drawing any conclusions. The author’s expertise is outlined in attachment 2.

2. Definitions and management framework

2.1 Definitions Part 10: s315 of the ACT Planning and Development Act 2007, makes provision for public land to be designated (reserved) under the territory plan for any of the following purposes: (a) a wilderness area; (b) a national park; (c) a nature reserve; (d) a special purpose reserve; (e) an urban open space; and several other categories. Goorooyarroo and Mulligans Flat Reserves were apparently established under provision of this Act and are managed as part of Canberra Nature Park under the 1999 Plan of Management. Mt. Ainslie and Mt. Majura reserves are designated land under the Commonwealth’s Australian Capital Territory (Planning and Land Management) Act 1988 and are also managed as part of Canberra Nature Park under the 1999 Plan of Management.

Whist the Planning and Development Act 2007 does not provide a detailed definition of a nature reserve, national park or nature park, s316 does require that an area of public land must be managed in accordance with: (a) the management objectives applying to the area; and (b) any plan of management for the area.

2.2 Management objectives and framework The Canberra Nature Park - Plan of Management (Environment ACT 1999) outlines the overall management objectives of a “Nature Reserve” as specified in the Land (Planning and Environment) Act 1991 (see Attachment 1).

Schedule 3 of the ACT Planning and Development Act 2007 defines the management objectives for public land. The management objectives of a national park or a nature reserve are identical: i.e.

1) to conserve the natural environment and,

2) to provide for public use of the area for recreation, education and research.

s312 specifies that the management objectives for an area of public land reserved for a particular purpose are:

(a) the management objectives stated in Schedule 3 (as outlined above) in relation to areas of land reserved for the purpose; and

(b) the management objectives stated by the Conservator of Flora and Fauna under subsection (2) in relation to areas of land reserved for the purpose.

The Canberra Nature Park Plan of Management outlines seven additional overall management objectives, and the Conservator of Flora and Fauna has specified 47 additional management objectives that are identified in each section of the plan.

Thus, it appears that any differences between a national park and a nature reserve would only occur if the Conservator of Flora and Fauna so specified. However, recent advice received from the Department of Environment, Climate Change, Energy and Water indicates that this provision has never been used, and that additional management objectives can be and are legally defined when a Plan of Management is prepared. The Conservator can comment on draft Plans of Management being prepared. Therefore, the Conservator does not have to use the s.312 power as the only means of varying management objectives in Plans of Management.

The primary and secondary management objectives align much better with IUCN Category II: National Park than with Category Ia: Strict Nature Reserve (Table 1 and 2. below). There is no legal requirement for a plan of management for a nature reserve to be any different to that, which may apply, to a national park.

2.3 Reserve establishment and development control Establishment of new reserves anywhere in the ACT is made under the Planning and Development Act 2007 and results in a change to the Territory Plan. On Commonwealth designated land (such as Mt. Ainslie and Mt. Majura) the approval of the National Capital Authority (NCA) is required prior to an amendment to the Territory Plan. Development activities on reserves in designated land do not require approval under the Planning and Development Act 2007, but these do require approval from the NCA under Commonwealth legislation.

The Plan of Management Canberra Nature Park and all other reserves must be consistent with the National Capital Plan and the Territory Plan. Mulligans Flat has a separate Plan of Management (Environment ACT 1999).

Management of all Canberra Nature Park reserves, apart from development activities requiring separate assessment, is in accordance with the Canberra Nature Park Plan of Management.

Under the Planning and Development Act 2007, the Conservator of Flora and Fauna can determine management objectives for an area of public land reserved for a purpose mentioned in schedule 3 and also issue directions that certain lands be managed in a specified manner, but these directions can also be issued to any landholder of any land with natural values in the ACT.

2.4 Global best practice protected area managment objectives How does the proposal fit the global standards for protected area management?

The International Union for the Conservation of Nature (IUCN) is the world authority on conservation and protected areas. In the absence of clear legal definitions of any differences between national parks and nature reserves in the ACT, it is worth keeping in mind IUCN definitions of six protected area management categories. These provide the globally accepted best practice standard categories for classification of protected areas, and provide a sound basis for community perceptions of the difference between purposes and objectives of these management categories. See Table 1.

The IUCN defines a protected area as: “A clearly defined geographical space, recognised, dedicated and managed, through legal or other effective means, to achieve the long-term

conservation of nature with associated ecosystem services and cultural values”. Although all protected areas meet the general purposes contained in this definition, in practice the precise purposes for which protected areas are managed differ greatly throughout the world.

Table 1: IUCN definitions of six protected area management categories, based on primary management objective (IUCN/WCMC 1994; as updated by Dudley 2008).

CATEGORY Ia

Strict Nature Reserve: Primary objective: to conserve regionally, nationally or globally outstanding ecosystems, species (occurrences or aggregations) and/ or geodiversity features: these attributes will have been formed mostly or entirely by non-human forces and will be degraded or destroyed when subjected to all but very light human impact.

Definition Set aside to protect biodiversity and also possibly geological/geomorphological features, where human visitation, use and impacts are strictly controlled and limited to ensure protection of the conservation values. Such protected areas can serve as indispensable reference areas for scientific research and monitoring.

CATEGORY Ib

Wilderness Area: Primary objective: To protect the long-term ecological integrity of natural areas that are undisturbed by significant human activity, free of modern infrastructure and where natural forces and processes predominate, so that current and future generations have the opportunity to experience such areas.

Definition Usually large unmodified or slightly modified areas, retaining their natural character and influence, without permanent or significant human habitation, which are protected and managed so as to preserve their natural condition.

CATEGORY II

National Park: Primary objective: To protect natural biodiversity along with its underlying ecological structure and supporting environmental processes, and to promote education and recreation

Definition Large natural or near natural areas set aside to protect large-scale ecological processes, along with the complement of species and ecosystems characteristic of the area, which also provide a foundation for environmentally and culturally compatible spiritual, scientific, educational, recreational and visitor opportunities.

CATEGORY III

Natural Monument: Primary objective: To protect specific outstanding natural features and their associated biodiversity and habitats.

Definition Set aside to protect a specific natural monument, which can be a landform, sea mount, submarine cavern, geological feature such as a cave or even a living feature such as an ancient grove. Generally quite small protected areas and often have high visitor value.

CATEGORY IV

Habitat/Species Management Area: Primary Objective: To maintain, conserve and restore species and habitats

Definition Aims to protect particular species or habitats and management reflects this priority. Many Category IV protected areas will need regular, active interventions to address the requirements of particular species or to maintain habitats, but this is not a requirement of the category.

CATEGORY V

Protected Landscape/Seascape: Primary Objective: To protect and sustain important landscapes/seascapes and the associated nature conservation and other values created by interactions with humans through traditional management practices.

Definition Protected area where the interaction of people and nature over time has produced an area of distinct character with significant ecological, biological, cultural and scenic value: and where safeguarding the integrity of this interaction is vital to protecting and sustaining the area and its associated nature conservation and other values.

CATEGORY VI

Managed Resource Protected Area: Primary Objective: To protect natural ecosystems and use natural resources sustainably, when conservation and sustainable use can be mutually beneficial.

Definition Conserves ecosystems and habitats, together with associated cultural values and traditional natural resource management systems. Generally large area, with most of the area in a natural condition, where a proportion is under sustainable natural resource management and where low-level non-industrial use of natural resources compatible with nature conservation is seen as one of the main aims of the area.

Table 2: Protected area management objectives and IUCN categories (Dudley 2008)

Management objective

Ia Ib II III IV V VI

Science 1 3 2 2 2 2 3 Wilderness 2 1 2 3 3 - 2 Biodiversity protection 1 2 1 1 1 2 1 Environmental services 2 1 1 - 1 2 1 Natural/cultural features - - 2 1 3 1 3 Tourism and recreation - 2 1 1 3 1 3 Education - - 2 2 2 2 3 Sustainable use - 3 3 - 2 2 1 Cultural attributes - - - - - 1 2

1 = Primary objective; 2 = Secondary objective; 3 = potentially applicable objective; - = Not applicable

2.5 Other criteria and considerations The IUCN characterises protected areas as having five linked elements (Davey 1998, Dudley 2008):

1. Representativeness, comprehensiveness and balance

2. Adequacy

3. Coherence and complementarity

4. Consistency

5. Cost effectiveness, efficiency and equity.

Under the nationally agreed JANIS guidelines all jurisdictions seek to establish a reserve system that is Comprehensive, Adequate and Representative (JANIS 1997). All Canberra Nature Park reserves make an important contribution towards meeting these criteria.

In other jurisdictions in Australia, other factors that usually need to be taken into consideration when identifying areas suitable for declaration and management as a national park also include the following. Similar considerations are likely to apply in the ACT.

2.5.1 Conservation values and significance

In this proposal, the conservation values lie principally in the protection and restoration of part of one of the largest remaining mostly interconnected nationally significant White Box - Yellow Box - Blakely's Red Gum Grassy Woodland and

Derived Native Grassland communities in the ACT1. This is an ecosystem that is listed under the Federal Environmental Protection and Biodiversity Conservation Act 1999 as a Critically Endangered Ecological Community and is found in the four reserves. The reserves also protect common and threatened plant and animal species as well as many Aboriginal and European cultural sites and provide a place of solitude and passive recreation for visitors and the city’s residents.

2.5.2 Management purpose

The Canberra Nature Park Plan of Management 1999 states: that most CNP reserves are highly modified woodlands or grasslands that reflect a shift in land use to conservation and recreation. These reserves may be manipulated to achieve a preferred vegetation cover of forest, woodland or grassland within the context of a defined management framework.

National Parks are established usually to preserve flora and fauna, maintain natural ecological processes, provide a range of outdoor recreational opportunities and protect other scenic landscape and cultural heritage values.

Consistent with these requirements, land use in the Canberra Nature Park serves mainly ecological, educational, scientific and social functions and passive outdoor recreation (Environment ACT 1999). These reserves have also been set aside as an aesthetic backdrop to the nation’s capital. They also serve as an alternative resource for visitors to enjoy compared to the more intensely developed urban parks by providing access for urban people to areas of solitude, quiet and refreshment (Environment ACT 1999).

An IUCN Category II National Park is defined as protected area managed mainly for ecosystem protection and recreation. Category Ia Nature Reserves are usually managed mainly for science, and a Category IV Habitat/Species Management Area is a protected area managed mainly for conservation through management intervention. Category II protected areas usually combine ecosystem protection with recreation, subject to zoning, on a scale not suitable for Category Ia (Dudley 2008).

Therefore, the amalgamated national park proposal fits the IUCN management objectives for a Category II national park better than the other two categories. However, the management objectives of some sections, such as Mulligans Flat,

1 It should be noted that there are other significantly larger areas of Box Gum Woodland remaining, eg:

• Large areas of interconnected Box-Gum Woodland fringing the mostly cleared valleys in the surrounding area of NSW (i.e. surrounding the Mulligans area) – much of these are similar to those in the Mulligans to Mt Ainslie areas in that they are mostly ecotonal areas (the Box-Gum Woodland to Dry Forest transition), which have mostly been subject to many years of cattle and sheep grazing, and the resultant fragmentation that one expects from woodlands in the agricultural zone).

• Similar areas (interconnected and of moderate to high quality) fringing the open, cleared plains (cleared for gazing and cropping) throughout the rest of the NSW Southern Tablelands and in the SW Slopes (including some well protected areas on freehold land – e.g. Commonwealth Stewardship sites and NSW DECCW Conservation Agreements on private land, and the Bush Heritage Reserve (Tarcutta Hills);

• A large area conserved (part of c. 600 ha added to the northern fringes of Coolah Tops National Park recently, part of which contains Box-Gum Woodland in very high condition), in addition to other areas which are intact and connected and of similar high quality in the surrounding landscape in that area of the Central Tablelands;

• Areas of high conservation value travelling stock routes with Box-Gum Woodland in the Central and Northern Tablelands (not conserved, but very well connected); and

• In northern NSW some of which are in very large conservation areas, including one recently added DECCW Conservation Agreement (Rainer Rehwinkel NSW DECCW pers. comm.).

appear to fit IUCN category II Strict Nature Reserve or Category IV, Habitat/Species Management Area. Such subsections could easily be included as a component of a national park.

2.5.3 Design, size and boundaries

National parks are usually, but not always, relatively large areas established and managed mainly for ecosystem protection and recreation. The four reserves are individually relatively small. Mulligans Flat is 791 ha, Goorooyarroo 703 ha, Mt Majura 481 ha, and Mt Ainslie is 640 ha. Their combined area is 2,615 ha. This area would generally be regarded as relatively small and generally well below the minimum size of national parks in other jurisdictions in Australia, but there is no hard and fast rule. For example, in NSW national parks range in size from 33 to over 673,000 ha, and nature reserves from <1 to 74,000 ha (DECCW 2010).

These reserves are in two separate paired clusters with a high boundary to area ratio on a rural and urban interface.

2.5.4 Uses and condition

The past and proposed uses and condition of the land is an important consideration in any discussion as to whether land is suitable for dedication as a national park or any other protected area category.

The four reserves proposed for amalgamation contain natural ecosystems that have undergone significant impacts from past land uses including grazing, land clearing, development of urban infrastructure such as transport, electricity supply, water supply reservoirs, rubbish tips, tourist lookouts, communication equipment (radar, radio, telephone cables and masts and optical beacons), electricity sub-stations, and small buildings. Mt. Ainslie contains a former rubbish tip site and site of a former waste transfer station both of which require further rehabilitation. All reserves are mostly capable of partial or complete recovery from past grazing activities, in the long term.

The importance and high level of passive recreational use of the reserves has been outlined above. Recreational use (walking, running, bike riding etc) is particularly significant in Mt. Majura and Mt. Ainslie reserves due to their proximity to the city centre and adjacent suburbs. This has created an extensive network of formal and informal trails, many of which are mostly eroding or poorly managed.

All reserves are subject to a variety of research projects to investigate natural values and ecological processes. A significant long-term collaborative research project on best practice woodland ecosystems management involving the reintroduction of threatened fauna species has been established in the Mulligans Flat Woodland Sanctuary.

2.5.6 Threats

All these reserves are located on the Canberra urban and rural interface and will be subject to ongoing and increased pressure for active and passive recreational uses, some illegal recreational activities, and development and maintenance of key urban infrastructure and asset protection from fires.

2.5.7 Connectivity

Current science indicates that protected areas cannot successfully be managed as islands, especially as the impacts of climate change will dictate new conditions under which species must adapt or move or perish. In order to allow species to move, evolve and adapt as much as possible, it is essential that biodiversity and ecological processes be managed across all land tenures at the landscape scale, particularly in

the long term as climate changes. Contemporary science indicates that the reserve system needs to be managed as part of a “bigger picture” or whole landscape system and not as discrete “islands”.

The National Parks Association of the ACT (NPA 2010) proposes that amalgamation of these reserves into a national park, forms a starting point for reservation of other areas that join the core protected areas as part a system of integrated connectivity conservation activities on adjacent and interconnecting lands. It is essential that the reserve system, whether retained as individual reserves or amalgamated, is managed as an integral part of ecosystems that extend across other land tenures.

Figure 1. Canberra Nature Park reserves 8, 16, 15 22, proposed for amalgamation as a National Park. There are 31 nature reserves in CNP.

3. Discussion Based on the above, the advantages and disadvantages of amalgamating the four reserves into a National Park are outlined below.

3.1 Advantages Amalgamating Mulligans Flat, Goorooyarroo, Mt Ainslie and Mt Majura reserves, which are located near the heart of the nation’s capital, as a national park:

1. can meet management objectives for a national park under relevant ACT legislation and IUCN protected area management guidelines;

2. will increase the perceived status of these reserves by increasing government recognition and improving community awareness of their importance, for the conservation and restoration of part of one of the largest remaining mostly interconnected White Box - Yellow Box - Blakely's Red Gum Grassy Woodland and Derived Native Grassland communities in the ACT, although this ecosystem makes up only a part of these reserves. This is an ecosystem which is nationally listed under the Federal Environmental Protection and Biodiversity Conservation Act 1999, as a Critically Endangered Ecological Community;

3. may provide an even stronger case for advocates to justify and seek increased resources to more effectively manage and redress threats including high and growing recreational use, including inappropriate, unsustainable and illegal uses;

4. may potentially increase management’s emphasis on linking and restoring interconnecting endangered grassy box gum woodland habitats on public and private land;

5. will continue to support world-class conservation science and woodland recovery research; i.e. it would not change the status of the Sanctuary project at Mulligans Flat;

6. will provide additional resolve, justification and arguments for managers to require planners and developers to better take into account the nature conservation values of the reserves to ensure that asset projection measures are contained within new urban developments, rather than always extending asset protection zones that modify vegetation deeper into the reserves;

7. may provide an opportunity to align legislative management categories with reserve names, which make clearer the relative conservation and recreational significance and purpose of the reserves;

8. may provide additional profile and opportunities to promote the long term woodland sanctuary rehabilitation and fauna reintroduction research project in Mulligans Flat, attracting additional research collaborators;

9. may help to highlight the predicament of endangered grassy yellow box – red gum woodland ecosystems;

10. may form a core of protected areas for expanding landscape scale connectivity conservation across other land tenures including onto adjacent rural leases and across the border into NSW. There is the possibility of further reserve expansion around Goorooyarroo, and in the vicinity of Kenny and Majura;

11. will be little additional transaction cost to establish the amalgamated reserves as a national park, as they are already protected, however community expectations may increase resulting in increased management costs;

12. will provide an opportunity for convening a new National Park

Advisory Board to provide community and expert scientific input to management of the new park. This would also create a new opportunity for engagement and involvement of Aboriginal people, who have largely been excluded to date in the management of these reserves;

13. will clarify the activities and management purposes of the amalgamated areas as a national park. It would readily comply with the IUCN classification as a Category II National Park, which should be managed mainly for ecosystem protection and recreation, rather than Category Ia Nature Reserve, which is usually a protected area managed mainly for science, or a Category IV Habitat/Species Management Area, which is usually a protected area managed mainly for conservation through management intervention.

14. will be no change for the community to enjoy a wide range of low impact recreational opportunities;

15. may not affect research projects such as the sanctuary project at Mulligans Flat, although some might argue that it could add complications by diluting attention and priorities away from the current focus enjoyed by this successful program;

16. may increase the quantity of funding and quality of management. It may be possible to attract additional funding from the Commonwealth, though this may be a slim possibility.

17. is likely to lead to calls for an advisory committee or board for the new park. Whilst this will increase resourcing demands on already stretched staff, an advisory board can provide expert and community input and increase support for and understanding of management decisions;

18. will provide further impetus, for example, to foster connectivity of the habitat and recreational link between Mt Majura and Goorooyarroo sections that span or pass under the Federal Highway. This would provide improved recreational opportunities and improve physical and functional connectivity of ecosystems.

It is possible under the ACT Planning and Development Act 2007, for land management agreements and lease conditions on privately leased lands to be varied form time to time to ensure that land use activities maintain existing woodland habitats and foster rehabilitation of disturbed lands to strengthen habitat interconnections as part of a landscape scale management approach. This would be a highly desirable outcome whether the reserves are amalgamated or not.

3.2 Disadvantages Amalgamating Mulligans Flat, Goorooyarroo Mt. Ainslie and Mt. Majura, as a national park:

1. will offer no additional statutory protection than is available to the existing reserves;

2. will risk creating a two tiered system leading to reduced funding and staff for the management of the other 30 or more other important nature reserves in the Canberra Nature Park system, by diverting scant resources into the new more high profile national park. The new national park may be the winner at the expense of the rest of the Canberra Nature Park robbing them of critical funding, management focus and public attention. The reserve system needs to be managed as part of the whole landscape approach, now and in the future as climate changes;

3. may only provide a tag to claim “national” significance of ecosystems in these reserves. Under current ACT legislation, there is little if any legal difference in the status of a national park over other parts of Canberra Nature Park. So unless the legislation is amended, the proposed park will be a national park in name only, without any additional protection other than its notional “national” status. It will be largely a matter of community perception;

4. will be a risk that Government might, as a trade-off, use the opportunity when creating the national park to remove parts of the Canberra Nature Park from the Territory Plan and sell them off;

5. will be no guarantee that the ACT Government will establish a new board to provide community input and advice to the managing authority on park planning and management decisions. Unless a new board is established, it is unlikely that much if any benefit, or increased management effort, will be focussed into the national park.

Note: Establishment of a national parks advisory committee or board is the usual practice in other Australian jurisdictions. Proof of this risk is indicated by the fact that the ACT government has not reconvened the Interim Namadgi Advisory Board to provide community input to the management of Namadgi National Park;

6. may lead to calls for the establishment of an advisory board for the new park. There is already a small board consisting mainly of scientists, which supervises the highly successful long-term woodland ecosystem recovery research and sanctuary program in Mulligans Flat. Establishment of a new advisory board is likely to call into question the role of existing committees, potentially leading to their replacement or lead to confusion about the continuing role of existing committees;

7. will potentially lead to diluting and changing management priorities from the current good attention on science needed to support proposed reintroduction of threatened species in the Mulligans Flat Sanctuary due to the relative importance of recreation as a significant use, particularly in the Mt. Majura and Mt. Ainslie sections;

8. will result in a national park which is very small compared to most others in the region and throughout Australia. All of its boundaries have either an urban or rural interface, which apply significant additional pressures and threats. However, there are many precedents for small reserves in similar situations throughout Australia.

4. Conclusions 1. Management objectives of Canberra Nature Park align much better with the

management objectives for IUCN Category II: National Park, than they do with Category Ia: Strict Nature Reserve (see Table 1). In the ACT there does not appear to be any legal requirement for a plan of management for a nature reserve to be any different to that, which may apply, to a national park other than any additional requirements that may be specified by the Conservator of Flora and Fauna.

2. There is unlikely to be any difference in relation to management or development assessment requirements if the reserves are amalgamated as a national park. Any difference would relate to public perception in terms of relative importance.

Therefore, at present, there is very little if any difference between a nature reserve, national park or nature park in this jurisdiction. It appears any differences would be up to the Conservator of Flora and Fauna to specify. Amalgamating and making the reserves into national parks appears to offer no additional statutory protection than is available to the existing reserves.

3. In spite of past history of disturbance and installation of some significant urban infrastructure, the amalgamated reserve appears to still meet the national park management category requirements under ACT legislation and IUCN’s global guidelines for management objective for Category II: National Park. It fits this management category better than, IUCN Category Ia: Strict Nature Reserve, (see definition Table 1).

4. Current best practice and understanding requires that woodland ecosystems need active management beyond the usual treatment of fencing, removal of stock pest and weed control and need to be managed actively managed at a landscape or ecosystem scale. Any new amalgamated national park needs to be managed as part of a whole of landscape approach if the reserves are to be viable for some species in the long term.

5. The other reserves in Canberra Nature Park that are not included, must not be neglected and starved of resources should an amalgamated national park be created from Mulligans Flat, Goorooyarroo, Mt Majura and Mt Ainslie reserves.

6. Establishment of new reserves anywhere in the ACT is made under the Planning and Development Act and results in a change to the Territory Plan. On designated land (such as Mt. Ainslie and Mt. Majura) the approval of the National Capital Authority is required prior to an amendment to the Territory Plan. Whist this requires an additional bureaucratic step it is probably unlikely to prevent the proposal proceeding.

5. Recommendations That the Commissioner:

1. Note that there is very little, if any difference, between a nature reserve, national park or nature park in this jurisdiction. This proposal appears to offer no additional statutory protection for an amalgamated national park than is already available to the existing reserves.

2. Advise the ACT government that amalgamating Mulligans Flat, Goorooyarroo Mt. Ainslie and Mt. Majura, as a national park meets the management objectives for a national park under relevant ACT legislation.

3. Note that national park status under current legislation is unlikely to increase legal protection of the amalgamated area.

4. Seek a guarantee from the ACT Government, that the other reserves in Canberra Nature Park that are not included, are not neglected and starved of resources, should an amalgamated national park be created from Mulligans Flat, Goorooyarroo, Mt Majura and Mt Ainslie reserves.

5. If the ACT Government agrees to create the new national park, make a strong case to the government for increased resourcing to allow the Dept. of Territory and Municipal Services to more effectively manage the new park, which has the potential to be presented as a centre-piece to visitors to the Nation’s Capital and to showcase world class science guide best practice woodland recovery and management.

6. Note that the community cannot afford for this proposal to be at the expense of reduced conservation management of other important reserves in Canberra Nature Park.

7. Note that an amalgamated national park needs to be managed as part of a whole of landscape/ecosystem approach, if the reserves are to be viable ecosystems for some species in the long term.

8. Encourage the ACT Government to review and clarify the management objectives and legislative protection of the Territory’s protected area system to bring it into line with the IUCN’s guidelines for protected area management categories.

References

DECCW [Department of Environment, Climate Change and Water (NSW)] (2010) Annual report 2009-10. Sydney, New South Wales. 336pp.

Davey, A.G. (1998) National System Planning for Protected Areas. Best Practice Protected Area Guidelines Series No. 1. Gland and Cambridge: IUCN

Dudley, N. (Editor) (2008) Guidelines for Applying Protected Area Management Categories. Gland, Switzerland: IUCN. 86pp.

IUCN/WCMC [International Union for the Conservation of Nature / World Conservation Monitoring Centre] (1994) Guidelines for Protected Area Management Categories. Gland and Cambridge: IUCN.

JANIS [Joint ANZECC / MCFFA National Forest Policy Statement Implementation Sub-committee] (1997) Nationally Agreed Criteria for the Establishment of a Comprehensive, Adequate and Representative Reserve System for Forests in Australia. A Report by the Joint ANZECC / MCFFA National Forest Policy Statement Implementation Sub-committee, Commonwealth of Australia. 20pp.

NPA [National Parks Association of the ACT Inc] (2010) OCSE Investigation into Canberra Nature Park, Molonglo River Corridor and Googong Foreshores, Letter to the Commissioner for Sustainability and the Environment. 28 Feb 2010.

Environment ACT (1999) Canberra Nature Park – Management Plan, Australian Capital Territory Government 109pp.

Attachment 1: Management objectives for Canberra Nature Park

The primary management objective for Public Land (Nature Reserve) as stated in Schedule I of the Land Act is the conservation of the natural environment. The Conservator of Flora and Fauna may also specify management objectives for an area of Public Land and for CNP this are identified in each section of this plan. The overall objectives for managing CNP are to:

(a) conserve and improve native plant and animal communities and maintain biodiversity and ecological processes, including the improvement of wildlife movement corridors through the urban area to link with other areas of habitat beyond the urban area;

(b) conserve features of cultural, geological, geomorphological and landscape significance including the setting of Canberra as the 'bush capital';

(c) protect CNP and adjacent areas from the damaging effects of fire, erosion, pollution, pest plants and animals or other disturbances;

(d) ensure appropriate practices by other agencies carrying out works in or adjacent to CNP;

(e) provide and promote a range of opportunities for raising awareness' appreciation and -understanding of natural and cultural heritage values through research, education, community participation and interpretation;

(f) provide and promote appropriate recreation and tourism opportunities that are consistent with the management objectives; and

(g) preserve sites and biodiversity elements of scientific significance in CNP including geological, geomorphological, soil, plant and animal populations and sites used for scientific research (see also zoning section). (Environment ACT 1999)

Attachment 2: Author’s expertise Ian Pulsford, B. Appl. Sc., MSc. Principal Environmental Consultant in assoication with Global Learning Pty Ltd. Ian Pulsford is a nationally and internationally recognised expert and leader in protected area establishment, management and landscape scale conservation. He has over 30 years experience in the assessment, selection, design and management of protected areas. He has outstanding skills leading and managing high performing multi-disciplinary teams of specialists in managing complex and controversial environmental planning, conservation assessment, threatened species recovery planning and regulation.

His expertise was honed while working with Australia’s leading public sector organisations (the National Parks and Wildlife Service and Department of Environment, Climate Change and Water NSW). Over a 10 year period a Divisional Manager, he lead the department’s delivery of statutory requirements on highly complex and controversial environmental issues and programs for south-east NSW. He has an extensive knowledge of the biodiversity values and landscapes of eastern Australia and especially NSW and the ACT, gained during extensive aerial and ground field inspections, surveys, research projects and desktop spatial assessments.

Recent programs he has lead include: ‣ establishment of the Great Eastern Ranges Initiative: Australia’s first continental

scale connectivity conservation corridor program as an adaptive response to climate change

‣ establishment of over 500,000 ha of protected areas including supervising and negotiating the assessment and design of an interconnected network of protected areas as part of a comprehensive, adequate and representative reserve system in two southern regional forest agreement processes

‣ strategic involvement of people and communities to achieve integrated landscape conservation outcomes at regional to continental scales in response to climate change

‣ leadership of departmental input to regional, local and urban environmental planning and assessment, as well as representing the department at State and ACT Government inquiries and at environmental planning and mining inquiries.

Attachment 3: Published papers & reports by the author Pulsford, I., Worboys, G.L., Howling, G. and Barrett, T. (in press) ‘Australia’s Great

Eastern Ranges Corridor: An adaptation response to climate change’ In (eds.) Chester, C.C., Hilty, J.A. and Cross, M.S. Conservation and Climate Disruption: Ecoregional Science and Practice in a Changing Climate, Island Press.

Pulsford, I., Worboys, G.L. and Howling, G. (2010a) ‘Australian Alps to Atherton Connectivity Conservation Corridor’ In (eds) Worboys, G.L., Francis, W.L, and Lockwood, M. Connectivity Conservation Management: A Global Guide, Earthscan, London pp96-105

Pulsford, I., Worboys, G.L., Evans, K. and Howling, G. (2010b) ‘Great Eastern Ranges Corridor: A Continental Scale Vision to Protect our Richest Biodiversity’, J. Nat. Parks Assoc (NSW) Oct-Dec .

Pulsford, I., Worboys, G., Shepherd, T. and Gough, J. (2004) ‘The Australian Alps and the Great Escarpment of Eastern Australia Conservation Corridors’. In (eds.) Harmon, D., and Worboys, G.L. Managing Mountain Protected Areas: Challenges and Responses for the 21st Century. Proceedings of the Mountain Protected Areas Workshop, Fifth World Parks Congress, South Africa, September 2003 Colledara, Italy: Andromeda Editrice. pp 106-114.

Pulsford, I., Worboys, G., Gough, J. and Shepherd, T. (2003) ‘Mountains of Opportunity: Towards a Vision for the Australian Alps and the Great Escarpment as a Backbone for Integrated Landscape Conservation in South East New South Wales’. Conference proceedings, Celebrating Mountains - International Year of Mountains, Australian Alps Liaison Committee, Nov 2002

Pulsford, I. and Ferrier, S. (1994) ‘The application of GIS by the National Parks and Wildlife Service of New South Wales, Australia to conservation in mountain environments’. In (eds.) Price, M.F. and Heywood, I.D .“Mountain Environments and Geographic Information Systems”, Taylor and Francis, London, 117-233.

Pulsford, I.F., Banks J.C.G. and Hodges, L. (1993) ‘Land use history of the white cypress pine forests in the Snowy Valley, Kosciusko National Park’. Proc. of the second national conference on Australian Forest History, ANU, Canberra, pp 85-104.

Pulsford, I.F., Banks, J.C.G. and Hodges, S.L. (1992) ‘Environmental history: an example from the white cypress pine forests in the Australian Alps’ In (eds.) Grenier, P. and Good, R.B. Les Alpes Austaliennse Review de Geographie Alpine. Insitut de Geographie Alpine, Grenoble. pp. 65-95.

Pulsford, I. and Banks, J.C.G. (1996) ‘Riparian vegetation’ in Expert Panel Environmental Flow Assessment of the Snowy River below Jindabyne Dam, Snowy-Genoa Catchment Management Committee. Bombala, News South Wales. pp 56-58.

Pulsford, I. (1982) ‘Conservation status of Brigalow Acacia harpophylla in N.S.W.’ In (ed.) Bailey, A. The Brigalow Belt of Australia. Proc. Roy. Soc. Qld. Symposium.

Worboys, G., Pulsford, I. and Mackay, J. (1995) ‘Lessons and achievements in conservation of the Kosciusko Alpine Area’. In (ed.) Mackay, J. The Australian Alps. Proceedings of the IUCN conference on Alpine Protected Area Management.

Reports (selected sample) Pulsford, I., Howling, G.A., Crane, R.C., Roberts, A., Darcy, M. and Barrett, T. (2010) ‘Great

Eastern Ranges Initiative: Annual Report and Consolidated report for 2007-20010’. Report by the NSW Dept. of Environment, Climate Change and Water (NSW) to the NSW Environmental Trust, 70p

Gibbons, P., Briggs, S.V. and Pulsford. I. (2005). ‘Biodiversity incentives framework. A framework for allocating incentive payments for biodiversity conservation on private land’. Report to the Department of Environment and Conservation (NSW).

Pulsford, I., Williams, M. and Williams, J. A (2005) ‘Review and Evaluation of the NSW Department of Environment and Conservation Mechanisms for Conservation on Private and Other Non-reserved Public Lands and Options for Future Investment’. Report to the Department of Environment and Conservation (NSW).

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