Annual reports

Department of the Environment, Water, Heritage and the Arts annual report 2007–08

Volume two
Department of the Environment, Water, Heritage and the Arts, 2008
ISSN 1441-9335

Legislation annual reports 2007-08 (continued)

Operation of the Environment Protection and Biodiversity Conservation Act 1999 (continued)

3. Managing heritage and protecting significant areas

Highlights

Listing and managing heritage places in Australia

The Australian Government’s heritage system, through the processes of the EPBC Act, provides protection for National Heritage places as matters of national environmental significance. The Act also contains provisions for Commonwealth owned or controlled heritage places.

The Australian Heritage Council Act 2003 established the Australian Heritage Council as the Australian Government’s principal advisory body on heritage matters. The Australian Heritage Council has responsibility under the Act for assessing the heritage values of places for the National Heritage List and the Commonwealth Heritage List (see Section 1.5 for information on the council’s work in 2007–08).

Under the EPBC Act the minister makes an annual call for public nominations for the National Heritage and Commonwealth Heritage lists and decides on Finalised Priority Assessment Lists of places which the council will begin to assess in the forthcoming financial year. The council provides its assessments to the minister, who makes the decision on whether places are listed.

World Heritage

There are 17 Australian properties inscribed on the World Heritage List.

Under the EPBC Act, the Australian Government must use its best endeavours to ensure that a plan for managing a World Heritage property is prepared and implemented cooperatively with the state or territory in which the property is situated. The plan should be consistent with Australia’s obligations under the World Heritage Convention and the Australian World Heritage Management Principles.

All of the 17 Australian properties in the World Heritage List have management plans. A number of these plans were prepared before EPBC Act requirements applied. In 2007–08 the department worked to bring these plans into line with EPBC Act requirements as they became due for renewal under state statutory timeframes and processes. Work included:

Serial nomination of convict places to the World Heritage List

The Australian Government submitted a World Heritage nomination of Australian convict sites to the United Nations Educational, Scientific and Cultural Organization in February 2008. The proposed serial listing includes 11 convict sites from around Australia:

This nomination is likely to be considered by the World Heritage Committee in 2010. Draft management plans were completed for these places. The draft management plan for Cockatoo Island has been reviewed and is being revised.

National Heritage

As at 30 June 2008 there were 79 places in the National Heritage List, with 20 places added in 2007–08 following assessment by the Australian Heritage Council. The places added were:

The minister decided not to include two places in the National Heritage List in 2007–08. These were:

In 2007–08 members of the public submitted 33 nominations for the national list. Nominations received before the cut-off date of 21 December 2007 (29) were forwarded to the Australian Heritage Council for consideration for inclusion in the 2008–09 proposed priority assessment list. The council also included four nominations of its own in the proposed priority assessment list. Nominations received after the cut-off date will be given to the council for consideration for the 2009–10 list. In May 2008 the minister announced the Finalised Priority Assessment List, which is the work plan of assessments for the council, to commence in 2008–09.

As at 30 June 2008 the council had completed a total of 109 assessments for the National Heritage List (12 in 2007–08).

The EPBC Act enables the minister to include in the National Heritage List a place that the minister believes may have National Heritage values that are under imminent threat. In 2007–08 the minister received four requests for emergency listing of places in the national list (Currawong, Pittwater; Judith Wright’s former home “Edge”, NSW; Cameron Offices, Australian Capital Territory; and the Large Erecting Shop, Eveleigh). The first two were rejected, the Cameron Offices had already been rejected for National Heritage listing, and were not further considered; the fourth is under consideration.

Progress in developing management plans for National Heritage places

To ensure the protection of a National Heritage place, the EPBC Act provides for the preparation of management plans, which set out how the significance of the site will be protected or conserved. Where a National Heritage place is not entirely within a Commonwealth area and is in a state or territory, the Australian Government must use its best endeavours to ensure that a management plan is prepared and implemented in cooperation with the relevant state or territory government. The minister is responsible for preparing management plans for National Heritage places in Commonwealth areas.

Many of the places included in the National Heritage List have management plans prepared under state or territory legislative arrangements, which may not fully satisfy the requirements of the EPBC Act. Sometimes multiple plans exist for the same place, often because of the different institutional owners involved. Most National Heritage places have some form of management plan in place. However many of the management plans that pre-date the EPBC Act require revision to meet the Act’s requirements. The Australian Government provided financial assistance to help develop management plans for Richmond Bridge (Tasmania), Batavia Shipwreck Site and Survivor Camps Area 1629 – Houtman Abrolhos (Western Australia), the Dirk Hartog Landing Site 1616 – Cape Inscription (Western Australia), Recherche Bay North-east Peninsula (Tasmania), former ICI Building (Victoria), and the former High Court of Australia building (Victoria).

The preparation of two management plans for the Point Nepean Defence Sites and Quarantine Station Area, which commenced in 2006–07, are in the final stages of completion. They address the requirements of the Act. In 2007–08 the department was involved in consultations over the development of plans for other National Heritage places: plans for Richmond Bridge (Tasmania), Old Parliament House (Australian Capital Territory) and the Australian Academy of Science (Australian Capital Territory) have been completed. The management plan for Mawson’s Huts Historic Site (Australian Antarctic Territory) was also completed in 2007–08 by the department. Draft plans for the Batavia Shipwreck Site and Survivor Camps Area 1629 – Houtman Abrolhos and the Dirk Hartog Landing Site 1616 – Cape Inscription have been prepared by state agencies and final versions are awaited.

National Heritage List communications themes

One of the objectives of the National Heritage List is to achieve greater protection through promoting greater public awareness and understanding of Australia’s heritage and its importance to Australia’s national identity. A branding framework and four-year communication strategy are under way to help the long-term protection of listed places by increasing public involvement in, understanding of, and commitment to, Australia’s heritage.

In 2007–08 ministerial heritage announcements and events generated extensive media coverage, such as the inclusion of Bondi Beach (January 2008) and Myall Creek Massacre site (June 2008) in the National Heritage List; the nomination of 11 convict sites to the World Heritage List (January 2008); and many others.

World Heritage communications activities increased after Australia gained a seat on the prestigious 21 member World Heritage Committee. Between March and June 2008 – the lead-up to the committee meeting – a national media background briefing was held at the Sydney Opera House, the UNESCO World Heritage storyboard competition was rolled out to Australian schools and a range of material was developed to support committee delegates.

There was a good take-up of new National Heritage List interpretative products including plinths, posts, plaques and brochures: approximately 20 per cent of all listed sites have now installed one or more of these products. This includes iconic places such as Flemington Racecourse and the Melbourne Cricket Ground in Victoria, Warrumbungles National Park and Bondi Beach in New South Wales, and Fremantle Prison in Western Australia.

Partnerships with corporate organisations and cultural institutions continued to be successful. QANTAS broadcast four heritage mini-documentaries on its national and international flights, and included regular heritage features in its in-flight magazine, The Australian Way. Significant partnerships under development for 2008-09 are with the National Museum of Australia (travelling banner heritage exhibition) and the Australian Film Commission (heritage mini-series).

Commonwealth Heritage

The Commonwealth Heritage List includes natural, indigenous and historic places in Commonwealth areas (land and waters owned or leased by the Commonwealth) identified by the minister as having Commonwealth Heritage values.

The February 2007 amendments to the EPBC Act also changed the nomination and assessment process for the Commonwealth Heritage List. The changes are similar to changes to the National Heritage listing process, with the exception that there is no provision for a statutory theme for the Commonwealth Heritage List.

By 30 June 2008 the Commonwealth Heritage List included 342 places. Two places were added in 2007–08:

In 2007–08 no places were nominated for inclusion in the Commonwealth Heritage List by the public. The minister included one place, HMAS Sydney II and HSK Kormoron Battle Site and Wrecks off the Western Australian coast in the Finalised Priority Assessment List for 2008–09.

Provisions in the EPBC Act enable the minister to directly include a place in the Commonwealth Heritage List when the minister believes it may have Commonwealth Heritage values that are under threat. In 2007–08 the minister received no such listing requests.

The Australian Heritage Council completed and sent seven assessments to the minister for places for the Commonwealth Heritage List.

Progress in developing management plans for Commonwealth Heritage places

The department continued to advise and work with Australian Government agencies on their responsibilities to prepare management plans for Commonwealth Heritage places under their ownership or control. Before an agency finalises a plan, it must invite members of the public, Indigenous people with rights and interests in the place and, where relevant, a state or territory to comment on the draft plan.

In 2007–08 the minister advised the responsible Commonwealth agencies that the management plans for the Drill Hall Gallery, Old Parliament House and Mawson’s Huts Historic site and the former Institute of Anatomy had satisfied Commonwealth heritage management principles. A management plan for the Edmund Barton Building, prepared by the private lessee in anticipation of obtaining a Commonwealth agency as tenant, was also found to satisfy Commonwealth heritage management principles. The department consulted with Commonwealth agencies on draft management plans for Lady Elliott Island in Queensland; the National Gallery of Australia, Old Parliament House Gardens, Old Parliament House, Lennox House, Toad Hall, and York Park in the Australian Capital Territory; the Perth General Post Office and Kalgoorlie Post Office in Western Australia; the Defence Explosives Factory at Maribyrnong, and Point Nepean Quarantine Station in Victoria; Mawson’s Huts Historic Site in the Australian Antarctic Territory; and Kingston and Arthurs Vale Historic Area on Norfolk Island.

Progress in preparing heritage strategies for Commonwealth Heritage values

Australian Government agencies that own or control one or more places with Commonwealth Heritage values must prepare a written heritage strategy for managing the places to protect and conserve their values. The principal objective of a heritage strategy is to outline a strategic approach for the agency to effectively manage places that it owns or controls for the long-term protection and conservation of their Commonwealth Heritage values. Before developing a heritage strategy, the agency is required to consult the Australian Heritage Council and take its advice into account.

A heritage strategy must address the matters set out in the Regulations under the EPBC Act. In 2007–08 heritage strategies for Australia Post and the Australian Customs Service were completed. The Australian Heritage Council provided advice on heritage strategies for the CSIRO, the Australian War Memorial and the Australian Broadcasting Commission. Thirteen agency heritage strategies have been completed.

In accordance with its heritage strategy, the National Capital Authority completed a draft management plan for Lake Burley Griffin and Adjacent Lands (Australian Capital Territory), which included an assessment of its significance against both Commonwealth and National Heritage criteria.

Ramsar wetlands

On 20 September 2007 Australia listed its sixty-fifth Wetland of International Importance, the Paroo River Wetlands Ramsar Site in north-western New South Wales (see www.environment.gov.au/water/publications/environmental/wetlands/paroo-river-factsheet.html).

The Ramsar Convention Secretariat was formally notified on 8 October 2007 of an amendment to the boundary of the Riverland Ramsar site. The amendment involved removing some non-wetland areas and including additional wetland and floodplain in the site. This followed extensive consultation with the affected community.

The Australian Ramsar Management Principles list management planning requirements for declared Ramsar wetlands. In 2007–08, the Australian Government continued to assist state/territory governments and communities in developing and reviewing management plans for Ramsar sites across Australia. All Ramsar sites in Commonwealth areas have the management plans required under the EPBC Act. To date, 55 of the 65 listed Australian Ramsar wetlands have management plans or draft plans.

The department commissioned a ‘Ramsar Snapshot’ to provide an initial assessment of the current status of Australia’s Ramsar sites and the major threats and management issues facing the sites. The report also looked at some of the processes for Ramsar Convention implementation, including the currency of existing site documentation and improving regular reporting on site condition, and made recommendations for improvements. A final report was completed in December 2007. Consideration and implementation of the report’s main findings are being progressed. The Ramsar Snapshot will assist in prioritising funding for updating Ramsar site management plans.

The EPBC Act allows the Commonwealth to provide assistance to protect or conserve a Ramsar wetland. In 2007–08 the Natural Heritage Trust and Coastal Catchment Initiative funded a number of descriptions of the ecological character of Ramsar wetlands, consistent with the Australian National Guidelines on Developing Ecological Character Descriptions.

The national guidelines on developing ecological character descriptions and national guidelines for preparing Ramsar site maps were endorsed by the Natural Resource Management Ministerial Council on 12 June 2008.

Work commenced on three additional guidelines: an introductory module; developing Ramsar management plans; and guidelines for nominating Ramsar sites. The guidelines for developing Ramsar management plans are consistent with the Australian Ramsar Management Principles (defined in the EPBC Regulations).

The Australian Government has provided funding of $13.4 million to the New South Wales Wetland Recovery Program, and $6.156 million of this was spent in 2007–08. This program aims to improve the health of the internationally significant Macquarie Marshes and Gwydir Wetlands, parts of which are listed under the Ramsar Convention. The Macquarie Marshes and Gwydir Wetlands are under ecological stress as a result of drought and land and water management practices. The work will develop knowledge of wetland and environmental water management, and provide on-ground environmental improvement through noxious weed management and improved flow regimes.

The Australian Government is jointly funding a $400,000 project under the New South Wales Wetland Recovery Program that is auditing water diversion structures in the Macquarie Marshes. The Australian Government will apply the EPBC Act where warranted.

As part of the Murray-Darling Basin Commission’s Living Murray Initiative, 16.9 gigalitres of water was available in 2007–08 for the environment, some of which was provided to Ramsar sites along the River Murray. The water was used to provide critical drought refuges to help protect threatened species including watering river red gum refuges at the Chowilla Lindsay-Wallpolla and Gunbower icon sites, and providing some water to a wetland in the Barmah-Millewa Forest to protect the threatened southern pygmy perch.

Biosphere reserves

A biosphere reserve is a unique concept that includes one or more protected areas and surrounding lands that are managed to combine both conservation and sustainable use of natural resources. ‘Biosphere reserve’ is an international designation made by the United Nations Educational, Scientific and Cultural Organization (UNESCO). The department is the focal point for biosphere reserves in Australia, while the Australian National Commission for UNESCO has overall responsibility for UNESCO activities.

The EPBC Act allows the minister to cooperate with states and territories on biosphere reserves while the Regulations contain principles for their management.

Noosa Biosphere Reserve, Australia’s fourteenth, was approved by the Bureau of the International Coordinating Council of UNESCO’s Man and the Biosphere Program on 20 September 2007. This Program is a UNESCO initiative. The department provided technical advice to community and other organisations and groups involved in biosphere reserve development.

Commonwealth reserves

The Australian Government manages an estate of marine and terrestrial protected areas that are Commonwealth reserves under the EPBC Act. The Director of National Parks prepares a separate annual report on management of these reserves.

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