THE GREAT BARRIER REEF MARINE PARK ZONING PLAN – 20 YEARS ON PROTECTING THE GREAT BARRIER REEF FOR FUTURE GENERATIONS © Commonwealth of Australia 2024 Published by the Great Barrier Reef Marine Park Authority This document is licensed by the Commonwealth of Australia for use under a Creative Commons by Attribution 4.0 International licence with the exception of the Coat of Arms of the Commonwealth of Australia, the logo of the Great Barrier Reef Marine Park Authority, any other material protected by trademark, content supplied by third parties and any photographs. For licence conditions see: http://creativecommons.org/licences/by/4.0 This publication should be cited as: Great Barrier Reef marine Park Authority (2023), Great Barrier Reef Marine Park Zoning Plan – 20 years on, Reef Authority, Townsville. Comments and questions regarding this document are welcome and should be addressed to: Great Barrier Reef Marine Park Authority 235 Stanley Street (PO Box 1379) Townsville QLD 4810, Australia Phone: (07) 4750 0700 Email: info@gbrmpa.gov.au www.reefauthority.gov.au Front cover © Commonwealth of Australia (Reef Authority). Aboriginal and Torres Strait Islander readers are advised this publication may contain names and images of deceased persons. 2 Reef Authority Acknowledgement of Traditional Owners The Great Barrier Reef Marine Park Authority acknowledges the expertise, wisdom, and enduring connections that have informed the guardianship of the Reef for millennia. We pay our respects to the Traditional Owners as the first managers of this Land and Sea Country, and value their traditional knowledge which continues to inform the current management and stewardship of the Reef for future generations. For the Traditional Owners of the Sea Country known as the Great Barrier Reef, this ever changing, diverse ecosystem has been interwoven with their daily lives for tens of thousands of years. This multi-generational relationship spans the entire formation of the modern Reef that built up over the past 10,000 years as sea levels rose some 120 metres after the last ice age. The rising waters engulfed much of the Queensland coastline enabling the modern Reef to grow on the peaks of the inundated landscape and remnants of the ancient Great Barrier Reef that is estimated to be between 400,000 and 600,000 years old. The response of local people to the rapid rise in sea level and the formation of the modern Reef are captured in the oral history of many of the 70 Traditional Owner groups that call Reef Sea Country home. The cultural practices, sense of identity, art and lore of the Region’s Traditional Owners reflect their deep, long-term connection with the Reef, its component habitats and myriad species. The critical importance that these 70 groups place on protecting Sea Country reflects the fundamental connection between Reef health and their quality of life. Nautilus Shell Artwork © 2023 by Laurence Gibson, Yalanji Arts, Mossman Gorge The Great Barrier Reef Marine Park Zoning Plan – 20 years on 3 Foreword Protected area management matters As global ecosystems continue to be challenged by for the future of the world’s most the pressures of climate change, habitat loss, pollution and unsustainable extractive activities, protected precious natural environments. area management is increasingly needed to conserve biodiversity, maintain ecological integrity and function, Few marine environments have the richness of values, and enable ecologically sustainable use. It is one of iconic status and world-leading management of the the most important management tools available for Great Barrier Reef (the Reef). For nearly 50 years, the governments, communities, industry and Traditional Great Barrier Reef Marine Park Authority has been Owners in safeguarding nature for future generations. a global exemplar of innovative marine conservation through holistic protected area management. The Developing enduring management arrangements management of the Reef has continued to adapt to for natural and mixed-use environments is rarely a changing environment through: straightforward. Indeed, as the Reef example highlights, protecting habitats and the species • science and monitoring they support is more complex than just drawing • new technologies lines on a map. It requires robust understanding • threat reduction programs of the ecosystem and how it functions, industry • conservation actions and cultural use, and the resources and laws to encourage compliance. The Great Barrier Reef • community education Marine Park Zoning Plan (2003) is both a celebratory • stakeholder engagement and participation. milestone and an opportunity to assess the outcomes and consider future initiatives in protected area management. I commend this document to marine scientists, park managers, First Nations communities, industry organisations and the wider public. Just as we all rely on nature to support our everyday lives and wellbeing, nature also relies on us to protect and conserve it for the future. Josh Thomas Chief Executive Officer Great Barrier Reef Marine Park Authority 4 Reef Authority Great Barrier Reef While coral reefs only cover around The modern Reef is a source of inspiration, livelihoods, one per cent of the world’s ocean floor, food and recreation for all who have settled along the Queensland coast. Today, it is arguably the jewel in they are home to a quarter of all marine the crown of Australia’s marine estates and a source species, making them equivalent of national pride for all Australians. The Reef remains to rainforests as global hotspots of an irresistible drawcard for millions of visitors from around the world, sustaining a vibrant and profitable biodiversity and magnifying their tourism industry founded on one of the world’s most importance for protection. iconic natural wonders. Effective management of the Reef and the biodiversity Visible from space, the Great Barrier Reef is famous it supports requires a holistic management approach for being the largest coral reef ecosystem and living founded on the identification and protection of structure on Earth, encompassing around 10 per cent a representative network of the ecosystems that of the world’s coral reef area. It comprises more than underpin its resilience. 3000 individual reefs, spans more than 344,000 km2 (around the size of Germany) and stretches 2300 km along the Queensland coast. By any measure the Great Barrier Reef is truly vast. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 5 The Great Barrier Reef at a glance The world’s largest coral reef 2,400,000+ Sea Country home ecosystem, comprising 10% catchment for 70 Traditional of the world’s coral reef ecosystems residents Owner groups 2300km long Roughly 344,400 square the same kilometres size as: Japan Italy Germany Malaysia Approximately 3000 coral reefs Approximately 600 continental islands Sea Country home for 70 Traditional Owner clan groups Cooktown One of the world’s most important dugong populations Cairns 1625 fish species, including 1400 coral reef fish Six of the world’s seven species of marine turtle Townsville About 150 inshore mangrove islands Multiple use Marine Park Mackay 164,000+ boat owners Traditional use of marine resources Contributes billions each Commercial marine year to the Australian economy tourism Rockhampton Fishing — commercial Supports tens of thousands and recreational Gladstone of full-time jobs Recreation Bundaberg Research and educational activities Figure 1. The Great Barrier Reef - a biodiversity hotspot of international significance. 6 Reef Authority The Great Barrier Reef Reef protection at a glance The Great Barrier Reef Marine Park Act 1975 (the Act) received Royal Assent on 20 June 1975 following multiple years of debate about risks to and the future use of the Reef, including potential mining and oil drilling. The Act established the Great Barrier Reef Marine Park Authority (Reef Authority), the Great Barrier Reef Region (the Region) and the ability to proclaim sections of the Great Barrier Reef The world’s largest coral reef 2,400,000+ Sea Country home Marine Park to address the Act’s objects. Since 1975, the Act has been reviewed and amended ecosystem, comprising 10% catchment for 70 Traditional on several occasions. The current objects of the Act serve as the foundations for all of the Reef of the world’s coral reef ecosystems residents Owner groups Authority’s work. 2300km long Roughly The Act’s primary object is; 344,400 square the same kilometres size as: “to provide for the long term protection and conservation of the environment, biodiversity and heritage values of the Great Barrier Reef Region (the Region)”. Japan Italy Germany Malaysia The Act also includes secondary objects that must be consistent with the main object: a) allow ecologically sustainable use of the Great Barrier Reef Region including: i) public enjoyment and appreciation ii) public education about and understanding of the Region iii) recreational, economic and cultural activities Approximately 3000 coral reefs iv) research into the natural, social, economic and cultural systems and value of the Great Barrier Reef Region Approximately (b) encourage engagement in the protection and management of the Great Barrier Reef Region 600 continental islands by interested persons and groups, including Queensland and local governments, communities, Indigenous persons, business and industry Sea Country home for 70 Traditional Owner clan groups (c) assist in meeting Australia’s international responsibilities in relation to the environment and protection Cooktown of world heritage (especially Australia’s responsibilities under the World Heritage Convention). One of the world’s most important dugong populations Cairns 1625 fish species, The reference to Australia’s international responsibilities under the 1972 Convention Concerning including 1400 coral reef fish the Protection of the World Cultural and Natural Heritage (World Heritage Convention) in the secondary objects the Act reflects the level of importance that Australia continues to place on Six of the world’s seven species of marine turtle protecting World Heritage properties. Australia was one of the first countries to ratify the World Townsville Heritage Convention in 1974. About 150 inshore In 1981, the Great Barrier Reef became the first coral reef ecosystem inscribed on the World mangrove islands Heritage List, meeting all four natural criteria for listing which recognised: Multiple use Marine Park Mackay • its phenomena and exceptional natural beauty164,000+ boat owners • its representation of major stages of Earth’s evolutionary history Traditional use of marine resources • its significant ongoing ecological and biological processes Contributes billions each Commercial marine year to the Australian economy • that it contains the most important and significant habitats for conservation of biodiversity. tourism Rockhampton For nearly 50 years the Reef Authority has worked to meet the objects of the Act, including Fishing — commercial Supports tens of thousands protection of the outstanding universal value of the Great Barrier Reef World Heritage Area in and recreational Gladstone of full-time jobs partnership with the other Commonwealth and Queensland government departments. Recreation Bundaberg Research and educational activities The Great Barrier Reef Marine Park Zoning Plan – 20 years on 7 Representative Areas Program Since the Act’s 1975 establishment, At this time, less than five per cent (4.6%) of the multiple-use zoning management previously declared Marine Park was fully protected from extractive activities. Those no-take areas were has been progressively implemented. focused on coral reefs that were widely dispersed Under the Act, once an area has across the enormous 344,400 km2 area. The sheer been proclaimed as part of the Great scale of the Reef, the wide range of environmental conditions and the vast array of habitats and species Barrier Reef Marine Park, a zoning plan that it supports, led the zoning architects to conclude (where zones separate conflicting uses that an expanded representative network of no-take and define the spatial boundaries of areas was required. This led to the Representative Areas Porgram - a six-year journey by dedicated activities that may or may not require teams of managers, scientists, industry and community permission) must be prepared. The first members. State-of-the-art science was used to zoning plan was developed in 1981 for enhance long-term protection of the Reef, consistent the Capricornia Section. with the primary object of the Act. The Representative Areas Program aimed to increase In 1998 the Commonwealth, States and Northern protection of the biodiversity of the Great Barrier Territory governments committed themselves to Reef by establishing a network of ‘no-take’ areas. establishing a National Representative System of These areas would protect representative examples Marine Protected Areas by 2012. The Australian of all broad-scale habitats as part of a new zoning Government affirmed this commitment at the United plan. When the Program began, there were five Nations World Summit on Sustainable Development separate Marine Park zoning plans and an additional in 2002. The primary goal was to establish and 28 areas that had been proclaimed to be part of the effectively manage a comprehensive, adequate Marine Park yet without zoning plans in place. The and representative system of marine reserves to Representative Areas Program process is described in contribute to the long-term conservation of marine the following figures (Figure 2) and culminated in the ecosystems and to protect marine biodiversity. The Amalgamated Great Barrier Reef Section, governed Reef Authority’s Representative Areas Program by a single zoning plan, the Great Barrier Reef Marine (the Program) was consistent with the National Park Zoning Plan 2003. This zoning plan took effect Representative System of Marine Protected Areas on 1 July 2004. aims, being: • Comprehensive – including the full range of ecosystems recognised at an appropriate scale within and across each bioregion • Adequate – have the required level of reservation to ensure the ecological viability and integrity of populations, species and communities • Representative – reasonably reflect the biotic diversity of marine ecosystems. 8 Reef Authority The Great Barrier Reef Representative Areas Program An ecosystem approach to protecting biodiversity Original 40 Maps of Zoning Plans Datasets Bioregions 28 New Coastal Areas proclaimed 1 3 4 as part of the Great Barrier Reef 1983–1988 1988–1999 1999–2000 Marine Park 5 2 Recognition that existing Zoning Plans were inadequate for the protection of biodiversity Develop operational 6 Draft principles Zoning Plan Community Identify Participation zoning Phase 110,000 public options submissions 8 7 9 2002 3 00 un 2 Community Revised Participation Zoning Plan 10 Phase 2 21,000 public submissions Revised New Regulatory Zoning Plan Zoning Plan Impact submitted to in effect Statement Parliament 1 July 2004 11 12 13 14 Nov 2003 Dec 2003 2004 Figure 2. Great Barrier Reef Representative Areas Program planning process. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 9 Jun–Aug 2003 J Design underpinned by science The Representative Areas Program design reflected the The membership of the steering committees were unique challenges of managing the vast Great Barrier decided after consultation with more than 70 of Reef ecosystem, which spans multiple gradients of Australia’s top scientists with expertise in the Reef. The environmental conditions that have shaped the wide SSC provided advice to the Reef Authority confirming variety of habitats that are found today. the scientific basis for zoning, noting that the “existing The design process brought together existing datasets network of Green Zones (no-take areas) in the Great and expert assessment to identify 70 bioregions (30 Barrier Reef Marine Park is insufficient to maintain reef and 40 non-reef regions – Figure 2) that made up the biological diversity and ecological integrity of the the broad habitats within the Reef. Great Barrier Reef into the future.” The 40 non-reef bioregions encompass a diverse The steering committee also confirmed support for range of key habitats including seagrass meadows, the zoning process and expressed a consensus view halimeda banks, inter-reefal seafloor areas, as well that increasing the proportion of no-take zoned areas as pelagic environments (Figure 3a). The non-reef to at least 20 per cent of each of the 70 bioregions bioregions span the majority of the area of the would help: Marine Park and are interspersed with the 30 reef 1) maintain biological diversity at the levels of bioregions that are characterised by the presence of ecosystem, habitat, species, population and genes corals (Figure 3b), the animals that build the three- 2) allow species to evolve and function undisturbed dimensional foundations of the 3000 individual reefs 3) provide an ecological safety margin against for which the Great Barrier Reef is famous. human-induced disasters To support the development of the Representative 4) provide a solid ecological base from which Areas Program, the Reef Authority convened two threatened species or habitats can recover independent committees – an independent Scientific or repair themselves Steering Committee (SSC) to develop biophysical 5) maintain ecological processes and systems. operational principles to guide the selection of no-take To guide the Representative Area Program process areas; and a Social, Economic and Cultural Steering the steering committees and Reef Authority Committee tasked with maximising beneficial and established a series of governing principles: 11 minimising detrimental impacts of the Program to local biophysical operating principles and four social, communities and stakeholders while delivering the economic and cultural and management feasibility overarching biodiversity protection outcomes. operational principles. These principles were used to guide each step of the zoning design, consultation and refinements that followed. 10 Reef Authority Biophysical operating principles 1) Have no-take areas the minimum size of which is 20km along the smallest dimension 2) Have larger (versus smaller) no-take areas 3) Have sufficient no-take areas to insure against negative impacts on some part of a bioregion 4) Where a reef is incorporated into no-take zones, the whole reef should be included 5) Represent a minimum amount of each reef bioregion (≥3 reefs, ≥20%) in no-take areas 6) Represent a minimum amount of each non-reef bioregion (≥3 reefs, ≥20%) in no-take areas 7) Represent cross-shelf and latitudinal diversity in the network of no-take areas 8) Represent a minimum amount of each community type and physical environment type in the overall network taking into account principle 7 9) Maximise use of environmental information to determine the configuration of no-take areas to form viable networks e.g. connectivity 10) Include biophysically special/unique places 11) Include consideration of sea and adjacent land uses in determining no-take areas. Social, economic and cultural and management feasibility principles 1) Maximise complementarity of no-take areas with human values, activities and opportunities 2) Ensure the final selection of no-take areas recognises social costs and benefits 3) Maximise placement of no-take areas in locations that complement and include present and future management and tenure arrangements 4) Maximise public understanding and acceptance of no-take areas, and facilitate enforcement of no-take areas. An iterative zoning design process used the operating principles, analytical planning tools (Marxan) and stakeholder consultation feedback to establish a network of Marine Park zones. The zones allowed for multiple uses while extending a high level of protection (no-take or green zone) to a minimum of 20 per cent of each bioregion. The resulting network spans a third of the total area (Figure 4). The Great Barrier Reef Marine Park Zoning Plan – 20 years on 11             Non-Reef Bioregions    “Š  M arch €2Œ0Œ01 €‰    €ŒŒ ‰‰ For historical reference purposes    Ž                on ly . Not to b e re cre ated.       ˆ‘’   ­­­€ ‚   ­­­€ ‚           ‘ ƒ„    ‚ ƒ„    ‚          €            “     …     …     „ ‚†     „ ‚†  ˆ               ‚        ‚                               Ž        €‰             ‚   ‚ —‰ Ž      ‡       ‡ ˆ  ‚  ˆ  ‚  ‰  ”    ‚    ‚ Ž         ‰† Š ‹   ‰† Š ‹     ”    €             ‚     €   ‚                ‚     ­‰     ‚     ‚  ‚ “€ ”    Š “†  € Š        Š   ’     ­€‚   Š  ‰ ‰’  Š ‘ “…   “†   •      ‰ ‰’ Š      “„  ‡   †  ‡  €  ‘               …   ‰ ‰’ ‡  „     •      Š     †         †      ‡    …       „                ˆˆ “ƒ     ˆ  ’–Ž’ ƒ          “‡  ˆ €  ƒ  ˆ  ˆ  ­ ‰ ‰‹Œ†Œ†„ Ž€ŒŒ† Figure 3. Bioregions of the Great Barrier Reef: Non-Reef Bioregions (panel 3a) and Reef Bioregions (panel 3b). 12 Reef Authority                          Reef Bioregions  “Š  €ŒŒ €‰    M arch €2Œ0Œ0 1 ‰‰   For historical reference purposes  Ž                      on ly . Not to b e re cre ated. ˆ‘’   ­­­€ ‚        ­­­€ ‚      ‘ ƒ„    ‚ ƒ„    ‚          €            “     …     …     „ ‚†     „ ‚†  ˆ               ‚        ‚                               Ž        €‰             ‚   ‚ —‰ Ž      ‡       ‡ ˆ  ‚  ˆ  ‚  ‰  ”    ‚    ‚ Ž        ‰† Š ‹   €   ‰† Š ‹    ”               ‚     €   ‚                ‚     ­‰     ‚     ‚  ‚ “€ ”    Š “†  € Š        Š   ’     ­€‚   Š  ‰ ‰’  Š ‘ “…   “†   •      ‰ ‰’ Š      “„  ‡   †  ‡  €  ‘               …   ‰ ‰’ ‡  „     •      Š     †    †            ‡    …       „                ˆˆ “ƒ     ˆ  ’–Ž’ ƒ          “‡  ˆ €  ƒ  ˆ  ˆ  ­ ‰ ‰‹Œ†Œ†„ Ž€ŒŒ† The Great Barrier Reef Marine Park Zoning Plan – 20 years on 13          Figure 4. Great Barrier Reef Marine Park zoning before (panel 4a) and after (panel 4b) the 2003 Zoning Plan came into effect from 1 July 2004. © Commonwealth of Australia 14 Reef Authority The Great Barrier Reef Marine Park Zoning Plan – 20 years on 15 Layering spatial management In addition to better protecting the full range of habitats of the Reef, the Zoning Plan also established new management arrangements including: Traditional Use of Marine Resources Agreements, the ability to accredit research and educational institutions thereby removing the need for individual permission applications for low risk activities; legislative protection for a range of species under the Great Barrier Reef Marine Park Act, and the ability to declare Special Management Areas in the Marine Park Regulations that allow specific areas of the Marine Park to be afforded further protection either permanently or for periods of time. Traditional Use of Marine Resources Agreements Traditional Use of Marine Resource Agreements are community-based plans for Wuthathi management of traditional resources which are accredited in legislation and have proved Kuuku Ya’u a successful mechanism for co-management People Marine Park ILUA of the Reef. These Agreements describe Lockhart how Great Barrier Reef Traditional Owner River groups work in partnership with the Australian Lama Lama and Queensland governments to manage traditional use activities on their Sea Country. Hope Vale Yuku Baja-Muliku The first Traditional Use of Marine Resources Cooktown Agreement was accredited in 2005. Today, Yirrganydji 10 Agreements cover more than 43 per cent of the Marine Park coastline and serve as Gunggandji a platform for government investment in Cairns Mandubarra Traditional Owner-led stewardship programs Innisfail that include the training and funding of Girringun Indigenous ranger groups who deliver on Cardwell Hinchinbrook Island Country compliance and protection actions. Palm Islands Magnetic Island Townsville Whitsunday Group Mackay Darumbal TUMRA area Keppel ILUA area Islands Woppaburra Town Rockhampton Curtis Island Great Barrier Reef Port Curtis Coral Coast Great Barrier Reef World Heritage Area Figure 5. Traditional Use of Marine Resources Agreement areas. 16 Reef Authority Lessons learned Disseminating the lessons from the Representative Areas Program and designing a new network of zoning for the Great Barrier Reef Marine Park was important for the Reef Authority. This would ensure others could learn and adapt for their own use as well as for corporate knowledge within the agency. There was a strong focus on published peer reviewed papers on methodology, given at the time this was the largest public consultation program undertaken for the Great Barrier Reef. Since this time, more than 100 peer reviewed and technical publications have been published and an equivalent number of presentations have been given at conferences, international meetings and within the local Reef community. Some of the key lessons included the value of: • a robust regionalisation linked to clear operating principles that were publicly available. This allowed a logical framework to be established with defensible outcomes; • input from Reef community members and stakeholders, including the Reef Authority’s Local Marine Advisory Committees; • a strategic communications strategy to deliver messages to different audiences and using different engagement techniques. In addition there was a formal, government review of the Representative Areas Program that set out a clear direction for the future management of the Great Barrier Reef Marine Park. Recommendations resulted in up-to-date, relevant legislation and an approach that provides for continued protection for marine life and biodiversity, as well as for ongoing sustainable economic and recreational activity and engagement with business and local communities. Review of the Great Barrier Reef Marine Park Act 1975 (2006) Day, J.C. (2020) Ensuring effective and transformative policy reform: lessons from rezoning Australia’s Great Barrier Reef, 1999-2004. PhD thesis, James Cook University, Townsville, Australia. An independent review of the zoning was conducted in 2006. While the review did not revisit the outcomes of the 2003 Zoning Plan, the planning process itself was reviewed, i.e. the consultation, accountability, and regulatory frameworks. The review acknowledged ‘...the RAP/rezoning was a significant undertaking for which there was no precedent in terms of scale, scope and process [emphasis added]...’ (p. 166). The review also acknowledged that GBRMPA had ‘...a well-considered scientific basis... made extensive efforts to achieve effective engagement... held a large number of meetings with stakeholders... and sought to achieve a balanced outcome between alternative uses...’ (p. 166). ...To a large extent the concerns raised by stakeholders in regard to the 2003 Zoning Plan process arise from disagreement with the scientific underpinning, and perceptions of a lack of transparency, accountability, and due process. While not sharing all these concerns, the Review Panel proposes that any future zoning arrangements be undertaken following approval of the process and operational principles by the Minister, that they allow for extended public consultation and that they be based on substantive socio-economic and biophysical information... (p. 11) The Review report acknowledged that more than 66 major changes were made to the draft Plan to accommodate submissions made by the commercial and recreational fishing sectors. The review also presented a case study for one area of the Great Barrier Reef Marine Park, the Capricorn Bunker Region, showing the significant changes between the draft Zoning Plan and the final 2003 Zoning Plan. The 2006 review findings also stimulated a number of key reforms including i) the requirement for a five-yearly Outlook Report (as a regular and reliable source of information for government to use to identify management actions as well as a key input for any review of the zoning plan), ii) evaluation of the composition of the Marine Park Authority Board, iii) changes to the primary object of the Act (see text box 1), iv) addition of the concept of ecosystem based management into the Act and change from essentially a corporate agency or a non-corporate agency; introduced concept of ecosystem based management into our Act. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 17 Outcomes Governments A global example working together Australia’s zoning reforms set a new standard in marine conservation that stands to this day, with more The Australian and Queensland goverments signed than 33% of the Great Barrier Reef now protected the 1979 Emerald Agreement in recognition of the under non-extractive areas. need for long-term planning and cooperation for the protection of the Great Barrier Reef. This agreement Over the past 20 years, the Reef Authority has, has evolved over time and today, the Great Barrier and continues to, work with other nations and Reef Intergovernmental Agreement 2015, still forms through international organisations to support the the basis for strategic planning, coordination of development of greater marine protection and policy and regulation, and the delivery of day-to-day conservation arrangements around the world. The management actions via the jointly funded Reef Joint Reef Authority was Australia’s focal point in the Field Management Program. formation of both the International Coral Reef Initiative (ICRI) and the International Marine Protected Area The Representative Areas Program design built upon Congress (IMPAC). the Emerald Agreement to accommodate the critical need for consistent, complementary management Through knowledge sharing and leadership exchange, across the Region. Together the (Commonwealth) the Reef Authority has worked closely with countries Great Barrier Reef Marine Park Zoning Plan 2003 and throughout the Pacific region and around the world the (Queensland) Marine Parks (Great Barrier Reef in an effort to protect coral reef ecosystems. Most Coast) Zoning Plan 2004 reinforce the complementary recently the Reef Authority facilitated the Pacific Coral management that has been in place since 1979. Reef Collective which brought together reef managers and designated partners from 14 Pacific countries to The zoning plan has enabled these measures while address shared challenges facing coral reefs, and also continuing the legal framework for the joint explore innovative solutions being implemented to Marine Parks permissions system and the compliance improve reef resilience. actions by the Reef Joint Field Management Program. Outlook Report Every five years, the Reef Authority publishes a comprehensive Outlook Report which examines the Great Barrier Reef’s health, pressures, and likely future. The report is required under the Great Barrier Reef Marine Park Act 1975 (section 54) and aims to provide a regular and reliable means of assessing the Reef’s health and management in an accountable and transparent way. The 2024 Outlook Report (the Report) is the fourth comprehensive report in the series and will outline the significant pressures impacting the Reef, ranging in scale from local to global, as well the world-leading management actions being undertaken by the Reef Authority and our partner network to reduce these pressures and further build Reef resilience. 18 Reef Authority Benefits Two decades on, the evidence from The explicit identification and inclusion of 40 non- numerous monitoring and evaluation reef bioregions (Figure 3) within the zoning network has afforded the highest levels of protection to studies demonstrate the benefits of representative areas of all of the habitats found in the zoning.There is near universal the Marine Park. While some of these habitats and acceptance that expanding the no- the species they support are less well studied, they support many keystone and iconic Reef species take areas was in the best interest including seagrass meadows that support dugongs of the Reef and everyone who relies and marine turtles. on and cares about it. Nevertheless, Many of these habitats and the species that they many of the scientists, managers support are also essential for ecosystem processes and community members who were such as carbon uptake from the atmosphere, nutrient cycling and primary productivity. Like the involved still reflect on the process as reef bioregions, most non-reef habitats are also having been a very difficult yet critical vulnerable to the effects of greenhouse gas emissions foresightful reform. through tropical storms, increasingly frequent marine heatwaves, sea level rise and changes in ocean The primary objective of the Representative Areas chemistry. While these bioregions may not be affected Program was to conserve the full range biodiversity and as soon as, or as severely as coral reefs, enhanced ecosystem function in the Region by protecting at least spatial protection was and remains consistent with the 20 per cent of all reef and non-reef bioregions through objects of the Act and the precautionary principle. an expanded network of no-take areas (Marine National Enhanced protection of the reef and non-reef bioregions Park – Green Zones). The opportunity to rezone the directly supports tens of thousands of Queensland entire area allowed for additional benefits, with the jobs associated with commercial and non-commercial increase in the Habitat Protection Zone also providing activities. The flow-on effects are in the billions of dollars greater protection from activities that might otherwise each year, representing significant components of the damage the seafloor. The Program was also anticipated Queensland and Australian economies. that the new zoning network would support stocks of fished species on reefs that were closed or partially closed to fishing. Scientific evidence demonstrating fishery sustainability benefits of no-take areas was scarce prior to the rezoning. Ongoing research has shown that these direct outcomes have been realised on the Reef, primarily because the network approach to the design has been coupled with ongoing investment in effective compliance enforcement. In addition, more recent published studies have highlighted the benefits of partially protected areas declared through zoning or had Special Management Areas in place to manage use. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 19 GREEN ZONES FOR A MORE RESILIENT REEF DID YOU KNOW GREEN ZONES RECOVER UP TO 20% FASTER THAN BLUE ZONES FROM IMACTS INCLUDING: Coral Coral Crown-of- Weather bleaching disease thorns starfish events outbreaks THE ‘SPILLOVER’ EFFECT GREEN BLUE Protecting larger means more breeding stock in fish in areas green zones open to fishing. A 50cm coral trout can produce more than 3x as many eggs as a 35cm coral trout. Figure 6. How green zones are working. 20 Reef Authority Spillover effect Coral predation Since 2004, the “spillover effect”, where a greater Comparisons of crown-of-thorns starfish outbreak GREEN ZONES abundance of large fish in fully protected areas dynamics across different zones also provides some significantly increase the number of juvenile fish insight into the observations of enhanced coral that migrate out to adjacent areas open to fishing, community resilience. Multiple publications have FOR A MORE RESILIENT REEF has been confirmed through dedicated studies. indicated a lower frequency of crown-of-thorn starfish Recognition of these zoning benefits also appears outbreaks on green versus blue zone reefs over the to underpin increasing observations of commercial past 15 years. A 2020 evaluation of this phenomenon and recreational fishers fishing along the perimeters confirmed earlier findings and also showed a lower of green (no-take) zones to take advantage of the frequency of crown-of-thorn starfish outbreaks in spillover effect. yellow zones (where some recreational fishing is DID YOU KNOW GREEN ZONES The coastal protection and fisheries productivity allowed) though the protective effect was not as RECOVER UP TO 20% FASTER THAN outcomes of enhanced protection are also significant. strong as in green zones where it was shown to be Research suggests that biomass of some fished four times lower. BLUE ZONES FROM IMACTS INCLUDING: species is increased in no-take (green) zones Recent research, using eDNA to examine the gut compared with take (blue) zones. The spillover effect contents of numerous predatory fish species that are underpins this reality and these benefits have accrued targeted by commercial and recreational fisheries against a backdrop of significant cumulative impacts. showed that a far greater number of predators eat crown-of-thorn starfish than had been previously Resilience observed. The summary being that on reefs with Coral Coral Crown-of- Weather higher densities of predatory fish, it is now thought While an improvement in fish stocks was not bleaching disease thorns starfish events that there is extensive downwards pressure within the surprising, the Australian Institute of Marine Science’s outbreaks foodwebs – large predators hunt smaller predators Long-Term Monitoring Program research has that then stay closer to the reef matrix and in turn demonstrated resilience benefits to both target are then more likely to feed on everything close fish stocks and to coral reef habitats. This work has to them including potentially less desirable spiky, demonstrated that reefs in no-take (green) zones are venomous starfish. overall more tolerant to and show improved recovery rates to disturbance events compared to open The evidence supporting this rationale extends to the THE ‘SPILLOVER’ EFFECT (blue) zones. findings of crown-of-thorn starfish eDNA within coral trout – large predatory fish that are not thought to While they are confident that this benefit continues, directly feed on crown-of-thorn starfish but do feed AIMS scientists are still evaluating why benthic on other predatory fish that do. Coupled with other (seafloor) coral communities show greater resilience research showing a larger proportion of scars and lost in green than blue zones. It is likely that there are limbs on juvenile and adult crown-of-thorn starfish several factors at play including more intact food found on green zone reefs provides a strong case that webs that include abundant predatory fish (many predators play an important role in crown-of-thorns of which are targeted by fishers) whose presence starfish outbreaks dynamics on the Great Barrier protects the capacity of corals to tolerate impacts Reef, with Reef-wide consequences for trends in coral thereby enhancing the speed at which communities health and resilience. GREEN BLUE re-establish. Anchor damage to corals on heavily fished and used reefs has also been considered as The zoning research has revealed another important Protecting larger means more a potential factor in the resilience differences across consideration for the selection of control reefs the zoning regimes, leading to increased deployment particularly in the presence of cumulative impacts breeding stock in fish in areas of moorings and no-anchoring areas across the Reef where recovery may be compromised. This is an green zones open to fishing. in areas that are regularly used. ongoing area of collaboration between researchers and managers that may further enhance the proven efficacy of the Crown-of-thorns Starfish Control Program in delivering regional scale coral habitat protection outcomes. A 50cm coral trout can produce more than 3x as many eggs as a 35cm coral trout. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 21 Climate change resilience-based management (RBM). RBM recognises the importance of the human dimensions of resilience While climate change impacts were beginning to both in terms of how human behaviours can positively affect the Reef in the lead up to the zoning reforms, or negatively influence investment in resilience notably in the 1998 and 2002 mass coral bleaching protection measures but also the key role that local events, addressing those emerging impacts was stewardship can play in their delivery. not the primary focus of the Representative Areas Program. Rather, the process was designed to ensure The Reef 2050 Long-Term Sustainability Plan (Reef effective representation of the full range of Reef 2050 Plan), first published in 2015, is the overarching species and habitat values found within the Great framework for protecting and managing the Great Barrier Reef. Although not an explicit objective, the Barrier Reef to 2050. It is updated every five years application of the biophysical operating principles, and builds upon the cooperative platform to ensure a the ecosystem protection approach and application common focus for the wide range of government actions of the precautionary principle to the zoning design that have been established to secure the future of the meant the resulting protection network did include an Great Barrier Reef. ecological safety margin — “insurance factor” — in the Great Barrier Reef Blueprint for Climate Resilience area that was afforded no-take protection to buffer and Adaptation (Reef Blueprint 2030) is the Reef against significant environmental disturbances. That Authority’s strategic roadmap to strengthen Reef foresight reflected mounting scientific concerns about resilience and is a key deliverable of the Australian the spectre of climate change and its emerging effects and Queensland government’s Reef 2050 Plan. At upon reef health dynamics. the heart of the Reef Blueprint 2030 are five strategic Since 2004, in recognition of the increasing influence goals that will drive how the Reef Authority adapts of climate change on coral reefs and their users, its management to a changing climate so we can marine protected area managers around the world progressively and effectively respond to the risks have further adapted their approach to focus on identified in the Outlook Report. 22 Reef Authority Reef Blueprint 2030 Strategic Goals Protect the Reef’s resilience Deliver world-leading resilience-based management that effectively addresses the key threats to the Marine Park, minimises pressures on vulnerable species and habitats, and supports a functioning ecosystem. Enhance the Reef Authority’s capability The Reef Authority’s management capability is underpinned by globally-recognised policy and legislation, strategy development, decision making, and data and knowledge. Co-manage Sea Country with Traditional Owners Great Barrier Reef management is conducted in a manner that acknowledges, respects, and supports the inherent rights, interests, and aspirations of Great Barrier Reef Traditional Owners. Empower others to protect and manage The Great Barrier Reef is a rallying point for domestic and international partnerships for action on climate change, Reef protection, and knowledge sharing on marine protected area management. Do our part to reduce emissions The Reef Authority is doing everything in our power to contribute to reducing greenhouse gas emissions and limiting global temperature increase to 1.5˚C of warming, or as close as possible. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 23 Future The Representative Areas Program Southern Plan of Management process and resulting zoning plan At the time of writing, the Great Barrier Reef Marine represent a key milestone along the Park Authority is developing a new, Traditional Owner-led management plan for the southern section Reef Authority’s nearly 50-year journey of the Reef. This will complement the underlying of adaptive management. The reform zoning plan and provide another opportunity to evolve fundamentally changed the protection policies and practises. of the Great Barrier Reef delivering a Technology foresight-based investment in the Reef’s The Reef Authority continues to improve conservation actions through the application of emerging future that continues to provide protection technologies in automation, remote surveillance to and resilience benefits to this day. target actions, artificial intelligence to model and monitor ecosystems and improve understanding of use, The Great Barrier Reef Marine Park Zoning Plan engagement, education, safety and compliance. has provided a strong foundation around which Stewardship management agencies and others have been able to address competitive and/or mixed use of the Region, The work of all of the Reef Guardians who assisted and develop supporting guidance, educational in the design and implementation of the zoning plan materials, enforcement programs and long-term stands out as an example of the effort and partnerships monitoring and modeling programs. that are now required to meet the climate challenge. The holistic approach to Sea Country that is embedded As the world changes in the context of a rapidly in the lives of the Reef’s Traditional Owners embodies changing climate, so too must our approaches to the recipe for resilience-based management. In the protecting coral reefs. words of Traditional Owners at the 2024 Reef Resilience Traditional Use of Marine Resources Agreements Symposium, “we need to have our heads, mouths and There has been a gradual and respectful evolution feet pointing in the same direction”. of engagement with Traditional Owner communities International best-practice and knowledge sharing on a journey towards co-management of Country Our gloabalised world is racing to keep up with the for both biodiversity and cultural outcomes. These increasingly complex and trans-border impacts of spatially-described and culturally-significant marine climate change, marine debris and pollution, habitat resource agreements with First Nations Australians are and species loss, over-fishing and urbanisation. a wonderful example of public-funded, community-led planning. These agreements have evolved through To be effective we need to acknowledge that the Reef time to become an organising frame through which is going to change significantly in the coming decades, Traditional Owners of the Great Barrier Reef are able that it will need our support to protect its integrity and to recapture and express their Cultural Knowledge resilience, and that we won’t be able to do everything. and practise for the betterment of their People and Inevitably this means complex, challenging decisions their Country. With approximately 70 Traditional about which actions to prioritise for the benefit of the Owner Groups along the vast and sparsely-populated generations to come. Queensland coastline, Traditional Use of Marine Resource Agreement groups will be a growing and ever more relevant platform for mobilising community effort to protect nature. 24 Reef Authority Enabling new science for Reef restoration Twenty years on from a complex, challenging decision Reef management is fundamentally a collective there is clarity that ongoing investment in the zoning effort, and the Reef Authority relies on the expertise plan still represents the best foundational conservation and knowledge of our partners to ensure the Great action that we can take to fulfil the primary object of Barrier Reef remains a global leader in marine park the Great Barrier Reef Marine Park Act. management and protection For close to five decades, the Reef Authority has been Under the Reef Restoration and Adaptation Program taking actions consistent with Australia’s obligations (RRAP), which is funded by the partnership between under the World Heritage Convention and the objects the Australian Government’s Reef Trust and the of the Act, including the design, enhancement and Great Barrier Reef Foundation, world-leading marine implementation of a protected area zoning plan scientists are developing and trialling a range of and plans of management that govern the spatial innovative solutions to help protect, restore and build boundaries for what is permitted in the Marine Park. more resilient reefs. The Reef Authority has always taken, and will continue to take, an adaptive, ecosystem-based partnership The goal is to provide reef managers and decision- approach to assess the risks and design and refine makers with a range of acceptable and cost-effective Reef protection and conservation actions to protect interventions to help protect the Reef from the impacts the Reef for future generations. of climate change, in conjunction with best-practice reef management, and reducing carbon emissions Through the work of the Reef Authority, and that of through a strategic three-point approach focusing on: our comprehensive partner networks, Australia is well-placed to extend our knowledge and remain • cooling and shading the Reef to help protect it at the forefront of safeguarding precious marine from the impacts of climate change habitats globally. • assisting Reef species to adapt to the changing environment We are committed to continue working through important international fora such as the International • supporting natural restoration of damaged and Coral Reef Initiative (ICRI), Convention on Biological degraded reefs. Diversity (CBD), International Marine Protected While RRAP is initially focused on developing Area Congress (IMPAC), and bilaterally with other technology and solutions to help the Great Barrier nations to exchange ideas, share knowledge and Reef, these solutions could also be applied to other advance conservation outcomes for coral reef reefs in Australia and around the world. systems worldwide, including our own iconic Great Barrier Reef. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 25 Awards and recognition The following quotes reflect the widespread The Representative Areas Program used the best recognition of the Program from a range of available science, including the use of a customised expert led multi-author papers.1 protected area decision support tool (Marxan) to ...The RAP, and its use in the rezoning of the optimise the protection and use benefits within the reef, is an innovative approach… becoming a draft and final stages of the spatial design. At the role model for policy development elsewhere... time the approach was unprecedented in scale and (Olsson et al., 2008, p. 9493). [Stockholm ambition, profoundly influencing marine protected Resilience Centre, Sweden] area design and management in Australia and around the world in the following decades. ...The Great Barrier Reef... boasts a system-wide spatial management approach that is arguably Across the scientific and conservation sectors the the world's most sophisticated and extensively zoning received widespread support as an essential implemented example of marine zoning... measure to secure the future of the Great Barrier Reef (Ruckelshaus et al., 2008, p. 59). [Stanford and as a best-practice case study for effective marine University, USA] protected area design and management for coral reef ecosystems around the world. ...The Great Barrier Reef Marine Park... may well provide the best example of large-scale ocean On the global stage, nationally and within Queensland zoning in existence today... (Agardy, 2010, p. 60). the extensive, comprehensive stakeholder consultation [Sound Seas Foundation, USA] and iterative zoning design and subsequent implementation process received strong endorsement. ... the 2004 rezoning of the GBR was exemplary (p. 480)... it remains one of the world’s best The Representative Areas Program achieved national examples of representing marine biodiversity... (p. and international recognition for the pioneering 498) (Devillers et al., 2015). [Research Institute for work including: Sustainable Development, France] • 2004 Eureka Prize for Biodiversity Research ...When the marine park was rezoned... a • 2004 Planning Institute of Australia, Overall Winner dramatically enhanced management system… a for Excellence in Planning rare example of an ecosystem-based approach… • 2004 Banksia Environmental Award for (Hughes et al., 2015, p. 588). [Australian Research Government Leading by Example for a Council Centre of Excellence for Coral Reef Sustainable Future Studies, Australia] • 2005 Sultan Qaboos Prize for Environmental ... The level of representation achieved in Preservation for UNESCO’s Man and the the Great Barrier Reef is exceptional... (Barr Biosphere Programme and Possingham, 2013, p. 45) [University of • 2007 Excellence in Marine and Coastal Queensland, Australia] Management Award at the United Nations Association of Australia World Environment Day Awards • 2008 ‘Top 25’ Ecological Restoration Projects in Australasia selected by the Global Restoration Network • 2010 World Future Council’s Silver Future Policy Award for the Australian Government’s efforts to protect the Great Barrier Reef in particular the statutory Zoning Plan based on the Representative Areas Program. A full list of awards is available on the Reef Authority’s website. 1 Drawn from (Day, J.C. 2020) as per previous page. 26 Reef Authority The Great Barrier Reef is one of our greatest natural wonders, and an integral part of Australia’s identity. To the countless contributors, key partners, pioneers, marine experts, community members, decision-makers and Reef guardians that have supported one of the world’s great examples of marine protected area management, we say thank you. Your contribution continues to make a difference. Long may it continue. The Great Barrier Reef Marine Park Zoning Plan – 20 years on 27 REEFAUTHORITY.GOV.AU