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Publications
Resource Assessment Commission, November 1993
ISBN 0 64429457
18.01 Governments and their agencies must act in concert to implement the National Coastal Action Program. Section 18.1 shows the implementation agenda. Table 18.1 sets out the specific requirements for implementation. Section 18.2 considers aspects of monitoring the implementation of the Program which will need to be carried out by the National Coastal Management Agency.
18.02 The National Coastal Action Program can be implemented if all governments adopt a 12-point agenda, as follows:
18.03 All 12 points of the agenda need to be undertaken concurrently. In view of the urgency of most of the matters considered in this report, it is important that implementation commence in 1994.
18.04 Table 18.1 lists the specific components for implementing the National Coastal Action Program. The Inquiry's recommendations are presented in summary form; detailed recommendations and the rationales supporting them are presented in the final section of each chapter. The table also identifies the sphere or agency of government responsible for implementation of each recommendation, assigns priorities, and provides broad estimates of timing and costs.
18.05 The cost estimates relate to incremental costs only; that is, it is assumed that policy development, planning and review are undertaken as part of normal government agency functions and consequently do not need to be costed separately. Additional expenditures may be required once the objectives of the National Coastal Action Program have been agreed by governments and relevant agencies have reviewed their priorities and budgets to ensure that the objectives are achieved.
Table 18.1 Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
1. Agree to develop and adopt the National Coastal Action Program
The National Coastal Action Prime Minister, The Commonwealth should seek agreement Essential 1994 -
Program be adopted and Premiers, Chief with state and local governments to
implemented by the three Minister, ALGA implement the National Coastal Action
spheres of government (Section Program and seek their commitment to
6.8) undertaking the requirements of such a
Program
Prime Minister, - Essential 1994 -
Premiers, Chief
Minister, ALGA
2. Establish national institutional and legislative arrangements to implement the Program
Establish a National Coastal Prime Minister, The Agency should be made up of two Essential 1994 $1 million
Management Agency and a Premiers, Chief parts: a board representing state, per annum,
National Coastal Consultative Minister local and Commonwealth governments and ongoing
Council (Section 8.6) indigenous people; and a secretariat.
These bodies are to be national
institutions, not
Commonwealth-controlled bodies. Funding
arrangements for the Agency and the
Council are to be shared between
governments on an agreed basis. To
avoid delay in establishing the Agency
and the Council, the Commonwealth could
provide interim funding until the
funding responsibilities between
governments are determined
Enact a Coastal Resource DEST The Act would establish a framework for High 1994 -
Management Act (Section 8.6) financial assistance by the
Commonwealth and incorporate the
objectives of the National Coastal
Action Program
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost Include in the proposed DEST Such agreement should include provision High 1994 - Coastal Zone Resource for guaranteed minimum levels of Management Act provision for funding, flexible 'top up' arrangements, agreement between the and penalties and sanctions for Commonwealth and other non-compliance with provisions of the governments in relation to the Act relating to financial assistance funding of the National Coastal Management Agency and the National Coastal Action Program (Section 17.4)
3. Adopt national objectives and principles for coastal zone management
Adopt national objectives and National Coastal To be developed in consultation with Essential 1994 - principles for coastal zone Management Agency non-government groups and endorsed by management (Section 7.6) COAG
4. Establish coastal zone coordinating mechanisms within and between each sphere of government
State governments to review Premier or Chief Membership of coordinating committees Essential 1994 -
the composition and roles of Minister's Department should be reviewed so as to be
their coastal coordinating or nominated lead consistent with the characteristics
committees and interagency agency proposed by the Inquiry. This should
functions (Section 8.6) include the establishment of advisory
committees. Consideration should be
given to including agencies with
similar functions in single ministries
Local authorities to review All coastal local Various types of committees currently High 1994 -
their arrangements for dealing councils exist to assist local government in
with coastal management issues managing coastal zone resources. These
(Section 8.6) arrangements should be reviewed using
the models identified in the Integrated
Local Area Planning program
Commonwealth Government to Minister for Committee to include representatives Essential 1994 -
establish a permanent Environment and DEST from departments with interests in the
interdepartmental Coastal coastal zone. Secretariat to be
Management Committee (Section provided by DEST, with the committee to
8.6) report to the Minister for the
Environment
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
5. Translate national objectives and principles into Commonwealth, state, local and regional objectives, principles and criteria
Each sphere of government to All spheres of Ministerial councils and government Essential 1995 -
review, develop and adopt government agencies preparing national criteria
coastal zone objectives, should ensure the criteria are
principles and criteria consistent with the principles of the
consistent with agreed Program
national objectives and
principles (Section 7.6)
Ensure all national Relevant Commonwealth To be undertaken as new strategies and Essential Ongoing -
strategies, programs and agencies and programs are developed and existing
initiatives that affect use of ministerial councils strategies are reviewed
resources in the coastal zone
are consistent with the
objectives and principles of
coastal zone management agreed
by COAG (Section 16.4)
Ensure other strategies and All relevant Requires consultation by program Essential Ongoing -
programs are consistent with government agencies managers with the National Coastal
the National Coastal Action Management Agency, state coastal
Program (Section 16.4) coordinating committees, and the
Commonwealth Coastal Management
Committee
6. Develop local and regional coastal strategies and improve approvals and environmental impact assessment procedures
Extend funding for the DHHLGCS and all Requires extension of current program High Extend to $2
Integrated Local Area Planning coastal local councils to 1997-98, to reach a greater number million
program (Section 11.4) of coastal councils 1997-98 per annum
Develop and implement local All coastal local Local strategy preparation to be by Essential 1994-95 $3
coastal zone strategies councils local councils, advised by local to million
(Section 11.4) interest groups and representatives of 1996-97 per annum
state and Commonwealth agencies
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Funds should be provided to high
priority areas, which should be
determined on the basis of the
significance of management problems
experienced in an area. Priority to be
identified by the National Coastal
Management Agency in consultation with
relevant agencies. Funds for regional
strategies provided by Commonwealth,
state and local governments. Funding
for strategy development to be
conditional on agreements being reached
to ensure that strategies are
implemented when finalised
Ensure administrative All coastal local The development and implementation of Essential 1995 -
arrangements within local councils local strategies will require local
authorities allow development authorities to have appropriate
and implementation of administrative arrangements
strategies (Section 11.4)
Ensure provision of All coastal local - Essential Ongoing -
infrastructure and services, councils
as well as other activities by
local councils, are in
accordance with the local
coastal strategy (Section
11.4)
Application of flexible land All coastal local Application of land use planning in Essential 1995 -
use planning mechanisms councils this manner will assist in achieving
directed at achieving strategy local area objectives and assist
requirements for each area consideration of incremental effects of
(Section 11.4) resource uses
Develop and implement regional State, local and Regional strategies to be developed by Essential 1994-95 $2
coastal zone strategies relevant Commonwealth regional groups of local, state and to million
(Section 11.4) agencies Commonwealth government agency 1996-97 per annum
representatives, advised by community
and industry groups. All states should
review existing regional boundaries
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Funds should be provided to high
priority areas, which should be
determined on the basis of the
significance of management problems
experienced in an area. Priority to be
identified by the National Coastal
Management Agency in consultation with
relevant agencies. Funds for regional
strategies provided by Commonwealth,
state and local governments. Funding
for strategy development to be
conditional on agreements being reached
to ensure that strategies are
implemented when finalised
Within each state, establish All spheres of Governments should continue to support High Ongoing -
unified assessment and government current reform processes. Unified
approval systems for systems should cover proposals affecting
development and conservation marine as well as land resources
proposals (Section 12.4)
Adopt stringent guidelines for All spheres of Development approval processes for major High 1995 -
the conduct of environmental government projects should include assessment of
and other impact assessments ecological, economic, social and
(Section 12.4) cultural impacts and cumulative impacts
Evaluate the potential of National Coastal Strategic environmental assessments may High 1994 -
strategic environmental Management Agency and provide a means of taking into account
assessments (Section 12.4) state coastal cumulative impacts
coordinating
committees
7. Encourage community and industry involvement in coastal zone management
Establish a Coastcare program Commonwealth The program should provide funds for Essentia 1994-95 $4
(Section 9.6) Government (DPIE, community facilitators and extension l to million
DEST) services and limited funds for 1996-97 per annum
rehabilitation works
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Review public participation State and local Community involvement in coastal High Ongoing -
arrangements in the formulation governments resource decision making is essential
of policies and programs for for improved management of coastal
coastal zone management resources
(Section 9.6)
Undertake a range of community The National Coastal Management Agency
education initiatives, should ensure close liaison between the
including Coastcare program, the Marine and
Coastal Community Network, the National
Marine Education Program and other
DEST natural resource and indigenous High 1994-95 $500 000
- extension of the National education initiatives to per annum
Marine - 1996-97
Education Program Council for High $100 000
Aboriginal Ongoing per annum
- extension of community Reconciliation, -
education ATSIC, other relevant
programs relating to agencies High $50 000
indigenous issues Ongoing per annum
National Coastal This should also include materials for
Management Agency providing information to local
- production of education government employees on the National
materials Coastal Action Program
explaining the National
Coastal Action
Program (Section 9.6)
Provide tax deductibility for Commonwealth Treasury This will provide an important incentive Essential 1995 Not
expenditure on coastal resource for companies and individuals to support estimated
conservation projects (Section projects to improve coastal resource
9.6) quality
8. Ensure effective representation of Australia's indigenous communities in coastal zone management
Establish a process whereby COAG This will require consultation with Essential 1995 -
traditional hunting, fishing indigenous communities and amendment of
and gathering rights are relevant legislation. In the interim,
recognised by governments governments should ensure there are no
(Section 10.4) unreasonable prosecutions
In the event of failure to negotiate
national arrangements, the Commonwealth
should enact legislation to establish
national criteria
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost Establish national criteria ANZECC, ATSIC Criteria should include provision for Essential 1994 - for the participation of representation on relevant management Australia's indigenous people authorities and the establishment of in the management of indigenous consultative committees to conservation areas (Section advise these authorities 10.4) Amend the Great Barrier Reef DEST - Essential 1994 - Marine Park Authority Act 1975 to provide for greater indigenous involvement in management (Section 10.4) Extend the community ranger ATSIC, ANCA To be undertaken in conjunction with High 1994 $1 system, support the state resource management agencies. million establishment of indigenous Funding arrangements to be determined per annum natural resource management following review agencies, and review funding for these initiatives (Section 10.4) Establish units to provide State and Commonwealth This will require consultation with Essential 1994 - advice on indigenous interests natural resource representatives of indigenous as part of policy making for management agencies organisations and peak industry bodies. natural resource management Costs to be met from reallocation of (Section 10.4) existing resources Ensure that indigenous ATSIC Funding to be met by reallocation of High 1994 - organisations have sufficient existing resources resources to participate in decision-making processes relating to development proposals (Section 10.4) Establish a joint Council on Council for Aboriginal As recommended by the Mining Committee High 1994 - Aboriginal Land and Mining Reconciliation of the Council for Aboriginal (Section 10.4) Reconciliation
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Prepare an Aboriginal and Ministerial Council on Strategy preparation will require Essential 1994-95 $1.5
Torres Strait Islander Forestry, Fisheries assessment of indigenous interests in to million
Fisheries Strategy (Section and Aquaculture fisheries; representation of indigenous 1995-96 per annum
10.4) people on fishery advisory committees,
measures to improve economic
development and employment
opportunities in fisheries and
mariculture, and measures to improve
relations between indigenous
communities, fisheries agency staff and
commercial fishers. This should
include evaluation by ATSIC of the
experience of the ACIAR and successful
indigenous commercial ventures
Adopt a national policy on Commonwealth and state Current progress towards finalising High 1994 -
ownership of and access rights governments and their agreement on cultural heritage
to indigenous cultural relevant agencies protection is slow and the categories
property (Section 10.4) covered are limited
Review Commonwealth ATSIC, AHC, ANCA The review should be conducted from High 1994 -
involvement in recording and within existing resources; however, the
protecting indigenous heritage Council will require additional
with a view to establishing an funding. It will be necessary to
Aboriginal and Torres Strait consult with indigenous organisations.
Islander Heritage Council and The establishment of a Council is
extending Commonwealth estimated to require $3.5 million per
heritage protection annum. This is not included in the
legislation (Section 10.4) estimated cost for the National Coastal
Action Program
9. Improve the research and information base for coastal zone resource use and management
Establish standards for Commonwealth Spatial The Spatial Data Committee should Essential 1994 -
collection and transfer of Data Committee establish a sub-committee to undertake
data (Section 14.5) this task and to enhance collaboration
between relevant Commonwealth agencies
Establish an integrated NRIC To be developed in collaboration with High 1994-95 $50 000
national directory of marine relevant agencies including ERIN and to per annum
and coastal data sets (Section state and local coastal resource 1996-97
14.5) managers
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Enhance the development of the ERIN Should be developed in collaboration High 1994-95 $300 000
National Marine Information with relevant agencies including NRIC to per annum
System (Section 14.5) and state and local coastal resource 1996-97
managers
Facilitate the development of National Coastal Assistance should be conditional on High 1994-95 $3
local and state coastal Management Agency agreed standards for data collection to million
resource inventories (Section and transfer. Inventories would build 1996-97 per annum
14.5) on existing data and data collection
initiatives. Allocation of funding
should be linked to priorities
established for the preparation of
local and regional strategies
Review the research priorities ASTEC This should include review of High 1994 $300 000
identified by this Inquiry and coordination arrangements for research
examine the scope for better funding and priority setting, the
coordination of research adequacy of arrangements for data
efforts in these areas collection, and the need for periodic
(Section 14.5) review of coastal research priorities
Transfer of data between All spheres of This recommendation is consistent with High 1994 -
government agencies should be government ANZLIC's draft policy on the transfer
based on the cost of of land-related data
transferring that data
(Section 14.5)
Maintain support for the Local DEST This should include continuing support Essential 1994-95 $300 000
Government Environmental beyond the existing pilot program for to per annum
Information Exchange Scheme environmental resource officers 1996-97
(Section 14.5) attached to local government
associations
Provide assistance to local National Coastal This should include the provision of High 1994-95 $50 000
authorities to make better use Management Agency advice on gaining access to specialist to per annum
of information available for information, dissemination of knowledge 1996-97
coastal resource management about 'best practice' information
(Section 14.5) systems, and the holding of workshops
Increase funding of the Marine DEST - High 1994-95 $100 000
and Coastal Community Network to per annum
(Section 14.5) 1996-97
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost Develop coordinated NRIC and ERIN - High 1994-95 $50 000 information services oriented to per annum to the needs of coastal 1996-97 resource managers, the research community and relevant groups
10. Initiate education programs to increase the expertise available for coastal zone management
Inform local government Local governments, Costs included in estimates for High 1994 -
employees of the implications with assistance from community education
of the National Coastal Action the National Coastal
Program (Section 11.4) Management Agency
Ensure that local governments All spheres of Local governments will be required to High 1994-95 $2
have sufficient expertise to government with define the range of competence needed to million
achieve the objectives of the assistance from the for the tasks associated with 1996-97 per annum
National Coastal Action National Coastal integrated coastal zone management.
Program (Section 11.4) Management Agency Commonwealth assistance could be
provided through such programs as the
Local Government Development Program
and the National Urban Development
Program
Establish key centres for Australian Research These centres should be funded from the High 1994-95 $800 000
teaching and research related Council forthcoming round of grants. The to per annum
to coastal resource centres should be established so as to 1999-2000
management, including a centre provide coverage of the full range of
for indigenous natural Australia's coastal zone environments
resource management (Section
11.4)
Tertiary institutions should Tertiary institutions Tertiary institutions should consult High 1994 -
ensure that integrated and with local government associations and
strategic approaches to other coastal managers about the scope
management are incorporated in of courses relevant to coastal
resource management courses management
(Section 11.4)
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
11. Improve quarantine and surveillance measures
Establish a base facility on Commonwealth The facility should be staffed Essential 1994 $200 000
Saibai Island (Torres Strait) Government continuously and members of local
for use by immigration, indigenous communities should be
quarantine and customs employed to assist in quarantine
officers functions. The employment of
(Section 15.7) quarantine assistants on Yorke, Sabai,
Badu and Darney Islands should be
continued
Enhancement of surveillance Commonwealth This should include equipping of High Ongoing $1
and interception capabilities Government Coastwatch with million
in northern coastal areas night-vision capacity for use in Torres per annum
(Section 15.7) Strait
Review Australia's quarantine AQIS Such a review is consistent with the High 1994 -
strategy (Section 15.7) recommendations of the 1988 Lindsay
Committee report and should focus on
the Northern Australia Quarantine
Strategy
Review role that Australian Department of Defence - High 1994 -
defence forces could play in and Coastwatch
civil surveillance (Section
15.7)
Adopt national domestic State and Commonwealth Funding be maintained for research High 1994 -
guidelines for handling governments program into management and eradication
ballast water (Section 15.7) of exotic marine pests and diseases
introduced through ballast water
Review options for dealing Ministerial Council on The review should include consideration Essential 1994 -
with breaches of fisheries Forestry, Fisheries of options for greater involvement of
regulations (Section 15.7) and Aquaculture Australia's indigenous people. Results
of the review should be taken into
account in developing the Aboriginal
and Torres Strait Islander Fisheries
Strategy
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
12. Improve funding arrangements and the use of economic instruments
Adopt cost-based charges for State governments, - Essential 1994 -
supply of water and disposal water agencies
of waste water and other
wastes (Section 13.5)
Adopt tradeable permit systems State governments, Development of these systems should High 1995 -
to help meet water quality water agencies assist in implementation of the
criteria (Section 13.5) National Water Quality Management
Strategy
Extend cost recovery All spheres of Concessions for lower income groups may Essential Ongoing -
arrangements for coastal zone government be required
resource uses and, where uses
have adverse environmental
consequences, implement
charging arrangements that
limit use (Section 13.5)
Developers meet full costs of Relevant local and The proceeds of developer contributions Essential Ongoing -
new developments through state governments should be distributed to agencies that
developer contributions agencies incur the costs associated with each
(Section 13.5) development; identification and funding
by governments of costs associated with
social or community service obligations
to be undertaken on a case-by-case
basis
Extend use of performance Relevant local and Bonds should be used unless equally High 1994 -
bonds for development projects state governments effective enforcement measures are
in the coastal zone (Section agencies available
13.5)
Adopt specific levies to help State and local This measure should be adopted only High Ongoing -
finance coastal zone governments when shown to be necessary; the revenue
management (Section 13.5) should be set aside for coastal zone
management and funding arrangements
should be fully transparent to the
community
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost
Introduce a tax on State governments Revenue obtained should be distributed High 1995 -
accommodation charges in the to state agencies and local government
coastal zone (Section 13.5) authorities on a competitive basis for
activities directed at achieving
coastal zone management objectives,
particularly those related to tourism
and recreation
Initiate pilot programs to DEST This will require collaboration with High 1994-95 $250 000
research, design implement and DPIE, state coastal coordinating to per annum
promote use of economic and committees and other relevant agencies 1996-97
financial instruments (Section
13.5)
Initiate a detailed review of BRS, ABARE and BIE The review should examine the effects High 1994 -
the environmental implications of such policies on the objectives of
of government policies and the National Coastal Action Program
programs pertaining to
industries operating in the
coastal zone (Section 13.5)
Provide adequate funds to All spheres of The Inquiry estimates that Essential 1994-95 -
ensure the National Coastal government implementation of the National Coastal to
Action Program is achieved Action Program will require 1996-97
(Section 17.4) approximately $23 million for each year
for the first three years of the
program. The Commonwealth government
should increase its levels of
expenditure on coastal zone management
to ensure that the Program is
implemented without delay
Review allocation of resources All spheres of - Essential 1994 -
for coastal zone management in government
light of the objectives and
principles of the National
Coastal Action Program
(Section 17.4)
Table 18.1 (cont'd) Implementation of the Inquiry's recommendations: responsibilities, priorities, timing and costs
Recommendation Responsibility Comments Priority Completion Cost The provision of funds for All spheres of Funding should also be conditional on Essentia Ongoing - coastal zone management should government the specification of monitoring, l be conditional on policies and evaluation and reporting arrangements programs being in accordance with national coastal zone objectives (Section 17.4) Develop a standardised National Coastal This should be done in conjunction with High 1995 $150 000 accounting format to assist in Management Agency, state, Commonwealth and local government monitoring and evaluating Commonwealth and agencies expenditures on important state Departments of aspects of coastal zone Finance management (Section 17.4)
- Nil.
Note: Costs are incremental only; it is assumed that policy development, planning and review are part of normal government agency functions and therefore do not need to be costed
separately. Additional expenditures may be required once the objectives of the National Coastal Action Program have been agreed by governments and relevant agencies have
reviewed their priorities and budgets to ensure that the objectives are achieved.
18.06 Monitoring progress in implementing the National Coastal Action Program is essential for ensuring that the requirements of the Program are being met; monitoring will provide a sound basis for evaluation of the effectiveness and efficiency of the Program in improving the management of Australia's coastal zone resources.
18.07 Responsibility for monitoring and evaluating the Program's implementation should lie primarily with the National Coastal Management Agency. Coordination with state coastal coordinating committees and local authorities will be required. All aspects of the implementation agenda require monitoring which should focus on the following:
18.08 Provided it has access to the necessary information the National Coastal Management Agency will be able to monitor elements of the Program for which it has direct responsibility. To adequately monitor progress in implementing the Program as a whole, however, it will need to monitor progress in implementing those many parts of the Program for which local governments and state and Commonwealth agencies are responsible. Provision of information to the National Coastal Management Agency should be the responsibility of the state and Commonwealth coastal coordinating committees; it will be necessary to consider the extent to which monitoring of the resources in the coastal zone is required to adequately evaluate the progress being made with the Program.
18.09 The results of monitoring the implementation of the National Coastal Action Program should be disclosed in the annual report of the National Coastal Management Agency to the Council of Australian Governments. These and other reports of the agency should be publicly available.
18.10 To ensure that the National Coastal Action Program is implemented without undue delay, it is essential that governments agree to implement relevant aspects of the Program according to the Inquiry's proposed implementation agenda.
R.68 The Inquiry recommends that
governments adopt the agenda for implementing the National Coastal Action Program;
18.11 The Program must be carried out in an effective and efficient manner and it is essential that an effective monitoring and evaluation program be put in place.
R.69 The Inquiry recommends that
implementation of the National Coastal Action Program be monitored and evaluated by the National Coastal Management Agency. The Agency should report annually to the Council of Australian Governments and its report should be publicly available.