Freshwater ecosystems

5. Freshwater biodiversity : Commonwealth programs.

This section (section 5) takes a brief overview of progress made at the Commonwealth level in the development of programs designed to protect freshwater biodiversity, both through the creation of inventories and reserves, and though “best practice” management of modified freshwater ecosystems.

5.1 The Commonwealth’s role.

The Commonwealth Government⁶⁸ is the agent that enters into international agreements such as those mentioned above. However, as previously discussed, the Australian Constitution places the prime responsibility for the management of the nation’s natural resources with the States and Territories. The Commonwealth Government’s financial resources⁶⁹ enable it to implement or coordinate particular programs (for example, those in fulfilment of international responsibilities) either by special purpose funding programs (such as the National Reserve System Program), or by reaching agreements with the States (such as the InterGovernmental Agreement on the Environment, the national biodiversity strategy, or the COAG water reform agenda – all signed off at the State level by State Premiers⁷⁰).
The Commonwealth has published both a biodiversity strategy (1996) (discussed above) and a wetlands policy (1997) (discussed below) . As well as providing specific commitments regarding Commonwealth programs (which, for the most part, are limited to the relatively small areas of Australia under direct Commonwealth control) these documents provide a general framework for the development of State policies and programs. It should be noted, however, that some States (Victoria and NSW, for example) developed their wetland policies some years ahead of the Commonwealth.
An important aspect of the national biodiversity strategy is that it clearly acknowledges the intrinsic values of the planet which forms our home, irrespective of values for humans. The development of a "planetary stewardship" ethic is, arguably⁷¹, one of the most important environmental issues today, and it is disappointing to note that so far only the Australian Capital Territory, and to some extent NSW, have endorsed the Commonwealth's lead in this regard (see discussion below).
One of the most important facets of the COAG water reform agenda (from the point of view of this paper) is that, at least in principle, States must develop water management frameworks which focus on sustainability. Under the agenda, State water legislation must provide for environmental flows. Agreed “national principles” provide a framework for environmental flow programs (ANZECC 1996). In practice, all States are developing environmental flow requirements, with NSW programs perhaps the most effective⁷² at this time.
The Commonwealth government, in general, has made clear commitments to the protection of freshwater biodiversity though both its policies and its funding programs. These programs, however, are complex, and made up of many “planks”. I argue in this paper that critical aspects of freshwater biodiversity protection have “slipped though” the gaps between these planks.

5.2 Commonwealth Wetlands Policy

In 1997 the Wetlands Policy of the Commonwealth Government of Australia was published as part of Australia’s fulfilment of its obligations under the Ramsar Convention. The policy applies only to places under Commonwealth Government jurisdiction, and to decisions made by the Commonwealth government and agencies. In the policy, the Commonwealth seeks to lead by example, and there is an expectation that a national approach to wetland conservation and management will be achieved through the States and Territories developing their own wetland policies.
Using a variant of the Ramsar definition⁷³ which excludes rivers, the policy requires the development of a wetlands inventory on Commonwealth land⁷⁴, and commits the Commonwealth to work with the States to develop a national inventory of wetlands⁷⁵.
However, the policy does not identify the need for CAR wetland reserves, thus missing an important link with Principle 8 of the national biodiversity strategy. Also, the limited definition used (cf: Ramsar) constricts the application of the policy – of particular relevance if the policy is designed to meet Ramsar obligations.
Although EIA mechanisms are supported with respect to Commonwealth wetlands⁷⁶, the policy does not recognise the difficulties created by cumulative effects, or the need for strategic biodiversity conservation planning within ICM frameworks⁷⁷.
In spite of its inheritance, the policy provides scant recognition for intrinsic values of wetlands⁷⁸.
The objectives of the Commonwealth policy are to:

• conserve Australia’s wetlands particularly through the promotion of their ecological, cultural, economic and social values;

• manage wetlands in an ecologically sustainable way and with a framework of integrated catchment management;

• achieve informed community and private sector participation in the management of wetlands through appropriate mechanisms;

• raise community and visitor awareness of the values, benefits and range of types of wetlands;

• develop a shared vision between all spheres of Government and promote the application of best practice for wetland management and conservation;

• ensure a sound scientific and technological basis for the conservation, repair and ecologically sustainable development of wetlands; and

• meet Australia’s commitments, as a signatory to relevant international treaties, in relation to the management of wetlands (Australia 1997).

The policy establishes a number of guiding principles, which are intended to ensure that wetland conservation is part of the every-day decision-making of the Commonwealth.