Reef 2050 Water Quality Improvement Plan 2017-2022

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Reef 2050Water Quality Improvement Plan2017–2022

Aboriginal and Torres Strait Islander peoples are the TraditionalOwners of the Great Barrier Reef area and have a continuingconnection to their land and sea country. State of Queensland, 2018.The Queensland Government supports and encourages the dissemination and exchange of its information.The copyright in this publication is licensed under a Creative Commons Attribution 3.0 Australia (CC BY) licence.Under this licence you are free, without having to seek our permission, to use this publication in accordance with thelicence terms. You must keep intact the copyright notice and attribute the State of Queensland as the source of thepublication. For more information on this licence, visit .en.#313592 Reef 2050 Water Quality Improvement Plan 2017–2022

ForewordThe Great Barrier Reef (the Reef) is precious to all Australians as well as to citizens across the globe who recogniseits scale, beauty and biodiversity. For Australia’s Traditional Owners, it is an integral part of their culture and identity.The Reef’s economic, social and iconic value as a global asset is estimated at 56 billion. It supports 64,000 jobs andcontributes 6.4 billion annually to the Australian economy.1Scientific evidence shows that the most pervasive and persistent risk to coral reefs worldwide, including theGreat Barrier Reef, is climate change. Damage to reefs associated with climate change arises from sea surfacetemperature increases, ocean acidification, altered weather patterns (such as more intense storms and cyclones)and rising sea levels. This means that now, more than ever, it is important to reduce the pressures on the Reef; andpoor water quality is chief among them. Sediments, nutrients and pesticides flowing to the Reef affect the health ofcoral and seagrass habitats, making the Reef less able to withstand or recover from events like the coral bleachingwe have witnessed in 2016 and 2017. Equally, the health of the Reef affects the resilience of Reef-dependent andReef-associated communities.The Australian and Queensland governments have committed more than 2 billion over 10 years to protecting theReef, with an unprecedented level of investment into improving water quality.This Reef 2050 Water Quality Improvement Plan 2017-2022 builds on almost 15 years of efforts by governments at alllevels working in partnership with landholders, natural resource managers, industry, and research and conservationgroups. Much has already been achieved by landholders and the community to change and improve theirpractices to protect the Reef.We can still do more and a step change is needed. We must accelerate our collective efforts to improve theland use practices of everyone living and working in the catchments adjacent to the Reef through a diversifiedset of actions. The Reef 2050 Water Quality Improvement Plan now directly aligns with our Reef 2050 Long-TermSustainability Plan. This includes expanding the scope to address all land-based sources of water pollution, includingfrom agricultural, urban, industrial and public lands. It also recognises the importance of people in creating changeand includes our social, cultural and economic values. The Plan sets targets for improving water quality for the 35catchments flowing to the Reef, for the six regions and for the whole Reef.It is imperative that we continue to work in partnerships to achieve the targets set in this Plan. This meansgovernments working together. It means land managers working together—whether they be farmers, residents,industry or public authorities. Through our partnerships, we can all improve the quality of water flowing into theReef. In this way, we help ensure the Reef is more resilient to the effects of climate change and will remain a site ofeconomic, social and natural resource value into the foreseeable future.Hon Leeanne Enoch MPHon Josh Frydenberg MPMinister for Environment and the Great Barrier Reef,Minister for Science and Minister for the ArtsMinister for the Environment and Energy1Deloitte Access Economics 2017. At what price? The economic, social and icon value of the Great Barrier ReefReef 2050 Water Quality Improvement Plan 2017–2022 3

4 Reef 2050 Water Quality Improvement Plan 2017–2022

ContentsForeword.3Summary.7Background.8Scope .11Outcome, objectives and targets.13Implementation .21Reef 2050 WQIP actions and deliverables.26Glossary.55Appendix 1: History.59Appendix 2: Links to further information.60Reef 2050 Water Quality Improvement Plan 2017–2022 5

6 Reef 2050 Water Quality Improvement Plan 2017–2022

SummaryThe UNESCO World Heritage listed Great Barrier Reef isa place of superlative natural beauty, treasured by itsTraditional Owners along with all Australians and theinternational community. Climate change will likelycontinue to be the strongest driver of ecological changefor the Great Barrier Reef in the future with more intenseweather events and cyclones, and increased frequencyof coral bleaching events. Improving the quality of thewater flowing from the land to the Reef is also critical forthe Reef’s health and, therefore, its ability to withstandand recover from extreme events.The five-year Reef 2050 Water Quality Improvement Plan(the Reef 2050 WQIP) now aligns and is nested withinthe Australian and Queensland governments’ Reef2050 Long-Term Sustainability Plan (Reef 2050 Plan). Inparticular, the Reef 2050 WQIP seeks to improve thequality of water flowing from the catchments adjacentto the Reef. The plan builds on previous water qualityplans developed in 2003, 2009 and 2013 by: including all sources of land-based water pollution:agriculture, industry, urban and public lands, whilerecognising that the majority of water pollution stillarises from agricultural activities incorporating the human dimensions of change.These include social, cultural, institutionaland economic factors: from the aspirationsand capacities of landholders, industries andcommunities, to their stewardship practices, and,broader governance of the reef. setting separate targets for reducing water pollutionfrom each catchment, to enable better prioritisationof actions.The Reef 2050 WQIP is based on the best availableindependent scientific advice, as provided by the 2017Scientific Consensus Statement – Land use impactson Great Barrier Reef water quality and ecosystemcondition (Scientific Consensus Statement). Themultidisciplinary team responsible for this Statementfound that “key Great Barrier Reef ecosystemscontinue to be in poor condition. This is largely due tothe collective impact of land run-off associated withpast and ongoing catchment development, coastaldevelopment activities, extreme weather events andclimate change impacts such as the 2016 and 2017coral bleaching events.Partnerships across all sectors at all levels continue to bethe key to making progress towards the water qualitytargets. This includes governments working togetherand with agriculture, industry, urban development andconstruction, conservation, community and naturalresource management stakeholders.The Plan recognises that governments and stakeholdershave made significant achievements in improving thequality of water reaching the Reef. The Smartcaneand Grazing Best Management Practice programsare examples of strong partnerships that improve theproductivity, profitability and sustainability of farmenterprises. However, more needs to be done toexpand and sustain the adoption of best managementpractices. The Plan also recognises that agriculturalindustries are not the only source of poor water qualitybut, collectively, agriculture dominates land use in thecatchment and is, therefore, the major focus.The desired outcome of the Reef 2050 WQIP is to ensure that‘Good water quality sustains the Outstanding UniversalValue of the Great Barrier Reef, builds resilience,improves ecosystem health and benefits communities.’Water quality targets define the required reductions insediment and nutrient loads by 2025 for the catchmentsdischarging to the Reef. The pesticide target ensuresaquatic ecosystems are protected. Water qualitymodelling and other scientific information has beenused to develop targets to improve the health andresilience of the Reef, at a scale that is more relevant tocatchment management than in previous plans.Progress towards these targets will be delivered by: applying minimum practice standards across allindustries and land uses supporting industries and communities to build aculture of innovation and stewardship that takesthem beyond minimum standards restoring catchments through works to improve orrepair streambanks, gullies, riparian vegetation andwetlands.The Reef 2050 WQIP will be implemented using anadaptive management approach, informed by bestscience, where actions are regularly monitored to seehow well they are working. In this way, actions can becontinuously adapted and improved.Current initiatives will not meet the water quality targets.To accelerate the change in on-ground management,improvements to governance, program design, deliveryand evaluation systems are urgently needed. This willrequire greater incorporation of social and economicfactors, better targeting and prioritisation, exploration ofalternative management options and increased supportand resources.”Reef 2050 Water Quality Improvement Plan 2017–2022 7

BackgroundThe enhanced management of water quality flowing tothe Great Barrier Reef commenced with the release of theReef Water Quality Protection Plan in 2003. This followedan independent Report on the Study of Land-SourcedPollutants and their Impacts on Water Quality in andadjacent to the Great Barrier Reef. Subsequent iterationsof the Reef Water Quality Protection Plan were released in2009 and 2013 (see Appendix 1 for a history timeline).Since the first Reef Water Quality Protection Plan wasreleased, both the ecological status of the Reef andthe effectiveness of water quality management havereceived extensive scrutiny. This includes three ScientificConsensus Statements on water quality in the GreatBarrier Reef (released in 2008, 2013 and 2017) whichhave drawn on the latest science to establish with morecertainty the risks that water pollutants pose to coastaland marine ecosystems of the Reef.Progress to date – building onpast achievementsThe joint efforts of government, industry, land managersand communities since 2003 have helped to deliverland management and water quality improvement.Figure 1 provides a visual summary of recent andcurrent programs to manage water pollution from reefcatchments and their achievements.Industry leads with bestmanagement practicesThe agricultural sector is taking positive steps to supportprogress towards the targets. For instance, the SmartcaneBest Management Practice (BMP), Grazing BMP andBanana BMP programs for farm management areexamples of strong partnerships involving the agriculturalindustry, natural resource management bodies, landmanagers and governments to improve productivity,profitability and sustainability of farm enterprises.This Plan builds on our achievements to date, whilerecognising the need to accelerate adoption ofimproved land and catchment management.8 Reef 2050 Water Quality Improvement Plan 2017–2022

Figure 1. The Plan builds on current programs and collective achievements in improvingwater qualityInvesting inwater qualityAustralianand Queenslandgovernmentsare investing 900 millionfrom 2013-2024to improve water qualityentering the ReefincludingFarmers implement best practices 1 millionhectares4%of grazing landin Reefcatchmentsaccreditedto BestManagementPractice standards217sugarcane businessesaccredited BestManagementPractice standards14%(57,689ha)of sugarcane landin Reef catchmentsby the QueenslandGovernment throughthe Queensland ReefWater Quality Program(2013-2022) 248 millionby the AustralianGovernment (2013-2022)already committed toprojects that target waterquality improvement 233 millionfrom the AustralianGovernment’s Reef Trust(2014-2024) has beenallocated for future waterquality projects. 1340farmersof bananaproduction areain Reef catchmentsaccredited to BestManagement Practicestandardsmanaging 150,000 haaccessed 1000 extensionand coordination activitiesfunded by the QueenslandGovernment (2012-2016)Partnering for change70 cane growers 419 million8,63073%hectarespartnered with Natural ResourceManagement Groups, the AustralianGovernment, WWF, and the Coca-ColaFoundation in Project Catalyst topromote farm practices that improvewater quality from sugarcane farmsProjects to remediate gullies andstreambanks and stop erosionof sediment are being jointly delivered througha partnership involving Australian andQueensland governments, Greening Australia,industry, research institutions and RegionalNatural Resource Management Groups 33millionfor 2 major integrated projects,funded by the QueenslandGovernment, to reduce nutrients,sediments and pesticides in the WetTropics and Burdekin regions,implemented by a group of partnersled by the local Regional NaturalResource Management Groups1000 less tonnesof nitrogen applied across farmsinvolved in the Burdekin Nitrogen Trials,a collaboration involving Burdekin farmers,the Queensland Government and SugarResearch Australia demonstrating reducedfertiliser use alsoimproves farm profitabilityChecking progressWorld-leadingProgress towardsPaddock to Reef programdelivering innovative monitoringand modelling on managementpractices, catchment indicators,catchment loads and the healthof the Great Barrier Reeftracked in the Great BarrierReef report cardwater quality targetsresearch projectsinitiated by the Queensland Government’sScience in the Paddock Program,looking at how to improveproduction and reduce waterquality issues for cane, banana,grains, and cattle producersreportcardscreated by regional partnersto communicate localwaterway health informationfor local decision-makingCreating knowledge435regional59research projectsaddressing water quality issues startedby the Australian Government’sNational EnvironmentScience Program’sTropical Water Quality hub since 2014Reef 2050 Water Quality Improvement Plan 2017–2022 9

Plan builds on findings from past evaluationThe Reef 2050 WQIP responds to the Australian andQueensland governments’ ongoing commitment toadaptively manage water quality initiatives in responseto evaluation findings.Australian and Queensland government investmentin Reef water quality initiatives has been subject toa range of evaluation activities in recent years. Forexample, in 2015, the Queensland Audit Office foundthat funding for improving Great Barrier Reef waterquality was fragmented and there needed to be moreaccountability for Queensland Government expenditure.In response, the Office of the Great Barrier Reef wasestablished to coordinate the Queensland Government’sReef water quality management initiatives.The Queensland Government then convened the GreatBarrier Reef Water Science Taskforce (the Taskforce) toprovide advice on the best approach to achieve thewater quality targets. The Taskforce evaluated currentwater quality efforts and noted that existing initiativeswere not bringing about rapid or widespread changesto water quality. Figure 2 shows the progress to date astracked through the Great Barrier Reef Report Cards.Figure 2. Progress from Reef Report Cards to 2016reduction in pollutant loadLong-term progress towards 2025 water quality targets60%DINdissolved inorganic nitrogen targetReef 2050 WQIP2017-2022Reef Plan 201350%40%30%sediment -132013-142014-15DINDIN2008-092009-10The Taskforce report of 2016 recommended a mix ofpolicy, regulation and investment to accelerate progresstowards the targets. The Taskforce’s recommendationswere accepted in-principle by the QueenslandGovernment and are incorporated into the actions inthis Plan.In 2016, the Australian Government’s Reef Trust programwas audited to assess the effectiveness of programdesign and implementation. The audit found the ReefTrust was largely effective and had incorporated thelessons learned from previous Reef programs. Theprogram has also recently undergone a mid-term reviewof its outcomes and targets. Recommendations will beincorporated into the remaining investment phases ofthe program.10 Reef 2050 Water Quality Improvement Plan 2017–20222015-162016-172017-18The Reef 2050 WQIP responds to findings from theseevaluations by incorporating actions to improvegovernance, alignment and coordination of investmentin Reef water quality. It also includes a mix of regulatoryand voluntary actions that align with recommendationsfrom the Taskforce and 2017 Scientific ConsensusStatement about what is needed to accelerate progresstowards the targets.

ScopeContextIn 2015, the Australian and Queensland governmentsreleased the Reef 2050 Long-Term Sustainability Plan (Reef2050 Plan). The Reef 2050 Plan identifies seven themes(ecosystem health, biodiversity, heritage, water quality,community benefits, economic benefits and governance)for managing the Great Barrier Reef World Heritage Area.The Reef 2050 WQIP is included as an action within thewater quality theme of the Reef 2050 Plan. Its specificpurpose is to identify management and monitoringrequirements for all land-based pollution to improvethe quality of water flowing from catchments adjacentto the Reef. The name of the plan has changed fromthe Reef Water Quality Protection Plan to the Reef 2050Water Quality Improvement Plan 2017-2022 to betterdemonstrate its alignment with the Reef 2050 Plan.The Reef 2050 WQIP provides an overarching frameworkto deliver strategic priorities across Reef catchments.Regional Water Quality Improvement Plans guide theimplementation of projects within regions and specificcatchments. The regional plans support the Reef 2050WQIP by providing locally relevant information andguiding local priority actions within catchments.Implementation of the Reef 2050 WQIP will require astrong partnership approach. It will need collaborationand commitment from government, industry andthe broader community, including Natural ResourceManagement (NRM) bodies. Reef-dependent and Reefassociated communities will contribute in various ways.Science advice onkey pollutantsThe 2017 Scientific Consensus Statement supports thecontinued need to focus efforts on reducing waterpollution to improve the resilience of coastal and marineecosystems of the Reef.The 2017 Scientific Consensus Statement concludes thatthe greatest water quality risks to the Reef are from: nutrients, which are an additional stress factor formany coastal coral species, promote crown-of-thornsstarfish population outbreaks with destructive effectson mid-shelf and off-shore coral reefs, and promotemacroalgal growth fine sediments, which reduce the available light toseagrass ecosystems and inshore coral reefs pesticides, which pose a toxicity risk to freshwaterecosystems and some inshore and coastal habitats.In addition to these risks, the increased presence ofwaste plastics, including micro-plastics, is an emergingpollution threat to the Reef. Plastics directly harm iconicspecies like dugongs, turtles and seabirds and cancontribute to disease outbreaks in corals.The impacts of all these pollutants on the coastal andmarine ecosystems of the Reef is complex. What iscertain is they have been found to be important atdifferent scales and locations across the Reef. Risks differdepending on the individual pollutant, its source andhow far the Reef is from the coast.Figure 3 provides a visual summary of the linkagesbetween activities in the catchment and impacts oncoastal and marine ecosystems of the Reef. It alsoshows how activities in the catchments can deliver a netimpact on the environment, and highlights the intrinsicsocial and economic values of the Reef.Land uses in scopeThe focus of this Plan has expanded to address allagricultural activities and other land-based pollutantsources including urban-diffuse, point source andindustrial discharge. Some examples of land-basedactivities that are now within the scope of the planinclude intensive animal production, manufacturing andindustrial activities, mining, rural and urban residential,transport and communication corridors, and wastetreatment and disposal. The main sources of waterpollution from Reef catchments continue to be fromagriculture. However, the Reef 2050 WQIP recognises thatwhile urban and industrial land uses provide a relativelysmall contribution to water pollution overall, they cancreate concentrated pollution that has important localimpacts. Including these activities within scope is part ofan integrated approach to catchment management.Activities to improve water quality at the end-ofcatchment also deliver benefits for wetlands within thecatchment by protecting their multiple values and the rolethey play in the ecosystem health of the Great Barrier Reef.Recognising the importance of communities, industriesand land managers in influencing water qualityoutcomes, the Reef 2050 WQIP includes specificconsideration of the human dimensions of achievingwater quality improvements. These include social,cultural, institutional and economic factors: from theaspirations and capacities of landholders, industriesand communities, to their stewardship practices, andbroader governance of the Reef.Finally, targets for reducing water pollution have beenset at the catchment, regional and whole-of-Reef scale,which means actions and effort can be focussed on thehighest risk catchments.Reef 2050 Water Quality Improvement Plan 2017–2022 11

Figure 3. The connections between the catchments and the ReefDRIVERClimate changeis predicted to increase the intensity of rainfall, floods andtropical cyclones which severely impact marine waterquality and ecosystems. Climate change will also affect theReef through rising sea levels; ocean acidification; andwarmer waters causing corals to bleach.PRESSURE/ACTIVITYAgricultureLANDSCAPE FEATUREaccounts for approximately 80% of landuse in Reef catchments and is the mainsource of excess nutrients, fine sedimentsand pesticides that flow to the Reef.Rivers and streamsact as corridors for many important speciesto move between freshwater, estuarine andmarine environments. They also provide apathway for pollutants to flow to the und coverPRESSURE/ACTIVITYModificationsstabilises soil preventing gullies fromforming and eroding soil causingsediment to flow to the Reef.to coastal ecosystems and creation ofartificial barriers, such as dams andponded pastures, impact water quality byinterfering with the natural connections ofwaterways from catchment to the Reef.PRESSURE/ACTIVITYLANDSCAPE FEATUREUrban and industrialPRESSURE/ACTIVITYWetlandsconstruction and land use activities causenutrients, sediments, and other pollutantssuch as heavy metals and plastics to flowto the Reef.connect catchments to the reef.They reduce the impacts of floodsand help to filter catchment run-off.Urban developmentincluding roads, footpaths and rooftopsincreases surface run-off which washespollution into waterways.of coastal and riparianvegetation contributesto erosion, especiallyof streambanks.LANDSCAPE FEATUREAquatic and marineecosystemsPOLLUTANTPesticidesLANDSCAPE FEATUREpose a risk to seagrass,wetlands andfreshwater ecosystems,and restrict coralgrowth.Seagrass meadowsare the primary food source fordugongs and green turtles.Increased sediment levels reducethe light available to seagrassecosystems and inshore coral reefs.POLLUTANTSedimentblocks light to and smothers corals andseagrass restricting growth. When combinedwith nutrients, fine sediment forms flocs thatcan impact coral health.provide important habitats forspecies such as fish, birds, andturtles to migrate to the Reef forbreeding, feeding and shelter.BENEFITRecovery from bleachingevents and other impacts is supported bygood water quality. It is important that waterquality impacts from both the catchment andmarine environments are properly managedwhile climate change is being addressed.BENEFITCultural valuesand communitiesare supported by healthy waterways, deliveringa range of benefits through access toresources, employment and recreation.12 Reef 2050 Water Quality Improvement Plan 2017–2022POLLUTANTNutrientsare linked to outbreaks of the coraleating crown-of-thorns starfish andcause growth of algae and algal blooms.Reef 2050 Water Quality Improvement Plan 2017–2022 13

Building the Reef’s resilience toclimate change with improvedwater qualityThe Reef is under increasing pressure from thecumulative effects of climate change, land-based runoff, increasing coastal development and direct usessuch as tourism, fishing and shipping. Climate change isidentified as the biggest threat to the Reef in the GreatBarrier Reef Outlook Report 2014. It affects weatherpatterns (increasing the intensity of cyclones andstorms), increases sea temperatures resulting in coralbleaching, and causes ocean acidification and risingsea levels. There is sound evidence that good waterquality increases the resilience of the Reef to pressuresfrom climate change and reduces the Reef’s recoverytime following catastrophic events.The Reef 2050 WQIP includes land-based risks thatneed to be considered and managed in the contextof climate change. Climate change makes the task ofimproving water quality in our rivers, streams, wetlandsand estuaries even more challenging. Consequencesof greenhouse gas emissions in the years and decadesto come are likely to include increases in the intensityof extreme weather events including cyclones.Rainfall events and associated flooding are likely tobecome more intense as global warming continues.There will be a tendency for more large-scale floodevents to contribute significant volumes of freshwaterto the marine environment, bringing additionalsediment, nutrients and pesticides to the Reef. Inaddition, scientific evidence shows that increasing seatemperatures can make the effect of water qualitypollutants more toxic. These inputs increase the stresseson coastal and marine ecosystems.Outcome,objectivesand targetsOutcomeThe Reef 2050 WQIP outcome links the Reef 2050Plan water quality and community benefits themes,recognising that one cannot be achieved without theother. The 2050 outcome is:Good water quality sustains the OutstandingUniversal Value of the Great Barrier Reef,builds resilience, improves ecosystemhealth and benefits communities.ObjectivesThe objectives of this Plan demonstrate the link betweenbroader Reef health and improving water quality, andthe human factors that are key in influencing Reefhealth. These objectives demonstrate the nesting of theReef 2050 WQIP within the broader Reef 2050 Plan.TargetsThis Plan includes a hierarchy of targets. The humandimensions target focuses on the social, cultural,institutional and economic factors that underpinwater quality improvements. Land and catchmentmanagement targets are set at the whole-of-Reefscale for tracking and reporting changes that lead towater quality improvement. Targets are set for reducingsediment and nutrient pollution loads and ensuringaquatic ecosystems are protected from pesticides atthe end of the catchment. The sediment and nutrientcatchment targets have been aggregated to provideindicative targets at the whole-of-Reef and regional scale.Figure 4 shows the link between the outcome, objectivesand targets of the Reef 2050 WQIP.14 Reef 2050 Water Quality Improvement Plan 2017–2022

2050outcomeFigure 4. Summary of Reef 2050 WQIP outcome, objectives and targetsGood water quality sustains the outstanding universal value of theGreat Barrier Reef, builds resilience, improves ecosystem health, and benefits communities.Supports long-term outcomeObjectivesImprovedcoral conditionImprovedseagrass conditionImproved landmanagementIncreased cultureof stewardshipImprovedbiodiversityMaintain viablecommunitiesImprovedgovernanceImprovedwetland condition2025 waterquality targetsContributes to ecosystem health and contributes to social resilience and benefits60%reduction in anthropogenicend-of-catchment dissolvedinorganic nitrogen loads20%reduction in anthropogenicend-of-catchment particulatenutrient lo

The economic, social and icon value of the Great Barrier Reef The Great Barrier Reef (the Reef) is precious to all Australians as well as to citizens across the globe who recognise . Investing in water quality World-leading 900million including Australian and Queensland governments are investing to improve water quality entering the Reef

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