Introduction

This audit assessed how effectively marine parks and reserves (MPRs), established under the Conservation and Land Management Act 1984 (CALM Act), are managed and protect the marine environment. We focused on the establishment and management of MPRs by the Department of Parks and Wildlife (DPaW). We also examined the role of the Department of Fisheries (DoF) who also deliver management activities in MPRs.

Background

The Western Australian (WA) coastline spans over 12,500 kilometres and has some of the most unique and biodiverse marine environments in the world. This includes the renowned Kimberley coast in the north, the world heritage areas of Ningaloo Reef and Shark Bay on the Gascoyne coast, the South West Capes and the southern coastline into the Great Australian Bight. Just over 90% of Western Australians live within 50 kilometres of the coast and our coastal areas support a diverse and sometimes competing range of recreational and commercial activities.

Since the introduction of the CALM Act, 16 MPRs have been established covering about 2.5 million hectares or nearly 20% of WA’s coastal waters:

• 13 marine parks to provide for the conservation and restoration of the natural environment, the protection of indigenous flora and fauna, and preservation of features of archaeological, historic or scientific interest. Marine parks also provide for recreational and commercial use where these activities do not compromise conservation values
• 1 marine nature reserve for conservation and scientific research. Although low-impact tourism may be permitted, no recreational or commercial fishing, aquaculture, pearling, petroleum drilling or production is allowed in these areas
• 2 marine management areas that manage and protect the marine environment so that it may be used for conservation, recreational, scientific and commercial purposes.

MPRs in WA state waters start at the coast and extend 5.5 kilometres from shore. In 2014-15 DPaW and DoF spent around $12.8 million on establishing and managing MPRs.

Four new marine parks are planned by the middle of 2017 (Figure 1). These are an outcome of the Kimberley Science and Conservation Strategy, and if established, will double the size of the network to more than 5 million hectares. It is also intended that all Kimberley marine parks will have joint management arrangements with traditional owners.

The New Horizons policy[1] has guided the establishment of MPRs since 1994 and aims to create a comprehensive statewide system of multiple-use MPRs. Amendments to the CALM Act in 1997 gave effect to the policy and established the framework in law.

Strategic objectives have been adopted which balance conservation with recreational, commercial, scientific and educational uses. The establishment of MPRs requires consultation with communities and stakeholders, and concurrence of the Minister for Fisheries, Minister for Mines and Petroleum, and the Minister for Environment. This approach aims to provide a system of MPRs that allows for multiple uses.

Marine parks must be zoned using 1 or more of 4 zone types (general use, special purpose, sanctuary and recreation) to manage usage. Management areas do not have to be zoned and marine nature reserves are no take areas. These arrangements are detailed in individual management plans:

• general use areas cover around 1.5 million hectares (approximately 60%) of the MPR network and allow commercial and recreational fishing and other extractive activities
• special purpose areas cover over 450,000 hectares (approximately 18%) and allow more specific uses that are compatible with a conservation purpose for that area
• no take areas (i.e. marine nature reserves and marine park sanctuary areas) cover about 300,000 hectares of the MPR network and provide the highest protection for marine habitats and wildlife by excluding commercial, recreational fishing and other extractive activities. The area covered by sanctuary areas will increase to about 500,000 hectares (approximately 20%) when the zoning for Eighty Mile Beach, Lalang-garram/Camden Sound and Ngari Capes is in place. Sanctuary areas will then cover about 4% of WA’s coastal waters
• recreation areas amount to around 60,000 hectares (approximately 2%) across the MPR network and allow for recreation activities (e.g. boating and recreational fishing). Recreational fishing must be compatible with other recreational purposes for the area. Activities such as commercial fishing, aquaculture, pearling and exploratory drilling are not permitted in these areas.

In 1998 the Commonwealth, State and Territory governments committed to establishing a National Representative System of Marine Protected Areas (NRSMPA) by 2012. The primary goal of the NRSMPA is to establish and effectively manage a comprehensive, adequate and representative system of MPRs:

• a comprehensive system is when all major bioregions have MPRs within them. In WA, 19 major bioregions have been identified in state coastal waters and a comprehensive, adequate and representative system will consist of a network of MPRs throughout the state
• adequate refers to the number, size, configuration, connectivity and level of protection of the MPRs within a bioregion
• MPRs need to be representative of the ecosystems within the bioregions. This means that all species of plants and animals found in WA waters will be represented somewhere in the MPR system.

Once established, 10-year management plans drive strategies and activities in MPRs (there are 12 management plans covering the 16 MPRs). These focus on ecological values (e.g. water quality, coral, finfish) and social values (e.g. seascapes, Aboriginal culture and heritage, marine nature-based tourism). Selected key values are key performance indicators (KPIs) of management effectiveness.

The Marine Parks and Reserves Authority (MPRA) oversaw the development of policy and management plans for each MPR and assessed implementation. In May 2016 the MPRA merged with the Conservation Commission to become the Conservation and Parks Commission.

DPaW is the lead agency responsible for the establishment and management of MPRs under the CALM Act. DoF is responsible for managing and regulating fishing, pearling and aquaculture in MPRs in accordance with the Fish Resources Management Act 1994 (FRM Act) and the Pearling Act 1990. DoF is also responsible for administering marine reserve compensation processes under the Fishing and Related Industries Compensation (Marine Reserves) Act 1997.

[1] Government of Western Australia (1994). New Horizons in Marine Management. Department of Conservation and Land Management, Perth.