Proposed Basin Plan consultation report

Chapter 5: Management objectives and outcomes to be achieved by the Basin Plan

Chapter 5 lists the management objectives and outcomes of the proposed Basin Plan. The chapter covers the proposed Basin Plan as a whole, the environment, water quality and salinity, long-term Sustainable Diversion Limits (SDLs) and water trading.

In the proposed Basin Plan, these objectives and outcomes are tied to the more detailed objectives in the Environmental Watering Plan (chapter 7) and the Water Quality and Salinity Management Plan (chapter 8). Chapter 5 provides the outcomes to be monitored and reported on to measure Basin Plan effectiveness as set out in the Monitoring and Evaluation Program (chapter 12).

11.Issue

Submissions expressed concern about the proposed optimisation economic, social and environmental outcomes.

While generally agreeing about the need to balance uses of water for environmental, social and economic needs, people tended to disagree about the scale of rebalancing required. Some felt that balancing these outcomes would not be equitable — that is, one or other of these outcomes would be met at the expense of the others, or impacts might fall disproportionately in particular areas.

‘I do not believe that the Draft Basin Plan provided balance between social, economic and environmental factors. That was the foundation on which this entire process was based and you simply have not delivered.’

Some submissions mentioned that, in the proposed Basin Plan, socioeconomic outcomes must be consider before environmental ones, otherwise Basin communities would have to bear the cost of adjusting to the economic changes that would flow from optimising environmental outcomes.

Other submissions claimed that the objectives did not reflect the prioritisation of the objects of the Act. These submissions outlined concerns that environmental outcomes and protection of areas under international agreements must be prioritised before social and economic considerations.

Other submissions expressed concern that achieving a better balance for the environment would continue to be compromised by prioritising the consumptive use of Basin water.

‘The objectives of the Act are very clear and the social and economic outcomes can only be optimised, as required, when the long-term environmental outcomes are also optimal.’

RESPONSE

The Basin Plan should optimise social, economic and environmental outcomes, and MDBA considers that this has been achieved in a way that is consistent with the Act.

Optimising social, economic and environmental outcomes will not be achieved solely by implementing SDLs over the transitional period to 2019. It will also involve other programs and initiatives of governments and communities to improve management of water resources. This includes policy initiatives by MDBA and other Australian Government or Basin state government agencies, including upgrading infrastructure to reduce water loss/improve efficiencies, ongoing strategic water buybacks, effective water markets, and complementary natural resource management programs.

MDBA agrees, however, that the objectives and outcomes could be better expressed and in revising the proposed Basin Plan has addressed several of the issues raised in submissions.

The objectives and outcomes for the Basin as a whole in section 5.02 have been amended regarding optimising social, economic and environmental outcomes

The outcome of a healthy working Basin, which supports the objective of optimisation, has been revised to include the outcomes of:

• 
  communities with sufficient and reliable water supplies that are fit for a range of intended purposes, including domestic, recreational and cultural use
  
• 
  productive and resilient water-dependant industries and communities with confidence in their long-term future
  
• 
  healthy and resilient ecosystems with rivers and creeks regularly connected to their floodplains and, ultimately, the ocean.
  

12.Issue

Submitters felt MDBA needed to demonstrate more clearly the relationship between chapter 5 (Management objectives and outcomes to be achieved by the Basin Plan) and the objectives and outcomes set out in subsequent chapters of the proposed Plan.

Response

Management objectives and outcomes described at a high level in chapter 5 are directly linked to the more-detailed objectives set out in chapters 7 (Environmental Watering Plan), 8 (Water Quality and Salinity Management Plan) and 12 (Program for monitoring and evaluating the effectiveness of the Basin Plan). To increase clarity on this matter, notes are included in relevant sections of chapter 5 directing readers to specified subsidiary objectives in chapters 7 and 8. Other chapters contribute more broadly to the management objectives and outcomes in chapter 5.

The management objectives and outcomes in chapter 5 also relate to the long-term benchmarks for success as presented by the Monitoring and Evaluation Program in chapter 12 and the reporting requirements outlined in schedule 10. The Monitoring and Evaluation Program will help to assess the extent to which the Basin Plan is achieving its objectives and outcomes.

To address concerns around clarity of linkages from chapter 5 objectives and outcomes to other chapters of the Basin Plan, MDBA has clarified and simplified language across the chapter for increased readability. To further strengthen linkages, Chapter 12 and schedule 10 have been updated to refer back to chapters 5, 7 and 8.

13.Issue

Submitters mentioned the lack of management objectives and outcomes regarding the protection of Aboriginal uses and values in the Basin, including in relation to implementation and transitional arrangements.

RESPONSE

The management objectives and outcomes in chapter 5 encompass a series of broad objectives and outcomes which incorporate elements such as strong communities, including strong Aboriginal communities. However, MDBA recognises the need to support more clearly the cultural use of water and the management objectives and outcomes have been modified to provide for the outcome of a healthy working Basin which encompasses Aboriginal water use through reliable supplies for cultural uses.

In addition, MDBA has continued to strengthen and ensure that each element of the proposed Basin Plan supports the objectives and outcomes set out in chapter 5, including in part 14 of chapter 9 which outlines the way objectives and outcomes for Aboriginal values and use of water resources will be identified in water resource plans. The identification of these objectives and outcomes related to Aboriginal values within the water resource planning process enables a consultative process to be undertaken so that objectives and outcomes can be captured at a local scale.

Further, the principles outlined in chapter 12, the program for monitoring and evaluating the effectiveness of the Basin Plan, have been amended to make clear that MDBA values and will seek cultural knowledge to evaluate the effectiveness of the Basin Plan.

MDBA has amended the objectives and outcomes for the Basin Plan as a whole where the outcome of a healthy working Basin encompasses the needs of communities with sufficient and reliable water supplies that are fit for a range of intended purposes, including domestic, recreational and cultural use (see section 5.02 [2]a).

In addition, cultural knowledge has been incorporated into principle 7 in chapter 12 to help determine the effectiveness of the Basin Plan

14.Issue

Submissions discussed whether management objectives and outcomes were measurable and could be met. Submitters mentioned the lack of clarity about what a healthy Murray–Darling Basin is and how it can be assessed. Others identified the need for an environmental impact assessment prior to the Plan being implemented to provide an understanding of the current state of the Basin and how management objectives would be progressed from this state to achieving the management outcomes outlined in chapter 5.

RESPONSE

Chapter 5 of the proposed Basin Plan provides broad management objectives and their outcomes for the whole of the Basin.

Subsequent chapters outline how these management objectives will be achieved and provide targets towards which progress can be measured. For example, chapter 7 and schedule 7 set out a framework for the EWP. Once an EWP has been made, progress made towards targets outlined in schedule 7 provides a way in which the overall environmental objectives for water-dependent ecosystems can be assessed and reported. This informs the progress made towards the broader management objectives and outcomes in relation to environmental outcomes in chapter 5.

Chapter 9 outlines the requirements of water resource plans. These water resource plans represent a key element for the implementation of the Basin Plan and thus the mechanisms by which the management objectives and outcomes will be achieved.  Elements within chapter 9 require targets to be used and are linked to management objectives and outcomes in chapter 5.  For example, in part 7 of chapter 9 water quality management plans for water resource areas will need to identify water quality targets for water-dependent ecosystems, including Ramsar wetlands. The water quality management plan then needs to specify appropriate measures for that water resource area. The planning and implementation of measures against specified targets to assess water-dependent ecosystems, including Ramsar wetlands, provides a way to achieve the water quality objectives for water-dependent ecosystems and thus the achievement of the water quality management objective and outcome in 5.04.

The management outcomes described in chapter 5 will be assessed using the framework and principles for monitoring and evaluation set out in chapter 12. Chapter 12 provides a schedule of reporting which enables consistent ways to review and evaluate of the effectiveness of the Basin Plan and its elements.

15.Issue

Submissions questioned whether other natural resource management issues including soil loss and degradation, the presence of pest fish in the Basin’s rivers, bank erosion and loss of native vegetation would be addressed in the Plan.

RESPONSE

The Basin Plan is constrained by the Act from reaching into wider natural resource management issues which remain a state responsibility. However MDBA agrees it is essential to ensure that the Basin Plan should be implemented in an integrated manner. There are two key mechanisms within the proposed Basin Plan for this to occur – firstly through the development of water resource plans, and secondly through the development of valley-based EWPs.

A range of government policies and programs are available that could support the implementation of the Basin Plan that sit outside the scope of the Basin Plan.

MDBA agrees that it is essential to continue to improve the broader management of natural resources of the Murray-Darling Basin to restore the condition of water dependent ecosystems. We have revised the objectives for the proposed Basin Plan as a whole (section 5.02) to this end.

In response to these concerns MDBA has included in the whole-of-Basin objectives, an objective to establish a sustainable and long term adaptive management framework for the Basin water resources, that takes into account the broader integrated management of natural resources in the Murray–Darling Basin (see 5 5.02 (1)(b)).

16.Issue

Submissions suggested that proposed Basin Plan objectives and outcomes referred to matters outside the scope of the Plan itself. They felt that the Plan should concern itself only with Basin water resources.

RESPONSE

The management objectives and outcomes in chapter 5 of the proposed Basin Plan have been reviewed against the purpose of the Basin Plan (section 20), basis (section 21) and objects (section 3) included in the Act. The objectives and outcomes in chapter 7 provide a greater level of detail addressing requirements of section 28 (Environmental Watering Plan) of the Act.

While the Basin Plan’s scope is limited to water management, MDBA is and will continue to liaise with other federal and state agencies to participate in a whole-of-government approach to the natural resource management in the Murray–Darling Basin.

17.Issue

Submitters suggested including a new management objective and outcome in relation to implementation and transitional arrangements. A number of these submitters suggested that there be objectives and outcomes related to management of risks. Some asked for management outcomes linked to the 2015 SDL review be incorporated.

RESPONSE

The risks to Basin water resources and strategies to manage these risks are outlined in chapter 4, which identifies the risks to the condition or continued availability of Basin water resources, and sets out the strategies to be used to manage or address those risks. Risk management is also supported through the chapter 9 requirements for water resource plans to be prepared having regard to risks to the condition and availability of water resources.

The purpose of the 2015 sustainable diversion limit (SDL) review is to review the limits on diversions and to incorporate further knowledge, both environmental and socioeconomic, into the setting of these limits. The management objectives and outcomes set out in chapter 5 consider the long-term objectives and outcomes that will be achieved by the Basin Plan.

MDBA considers that no additional objectives are required for the proposed Basin Plan. However, based on feedback received from submissions we have amended how a number of objectives and outcomes were written. These changes are detailed elsewhere in this chapter.

18.Issue

Concern was expressed with the lack of a management objective and outcome in relation to providing environmental water for the lower River Murray, saying this would greatly impact on the environmental assets in this area and the communities who live around them, particularly if another drought occurs.

RESPONSE

Chapter 7 has objectives and targets for the Coorong and Lower Lakes which, when met, will provide significant benefit to the lower River Murray. Similarly, the overall ecosystem function objectives in chapter 7 will, when met, provide significant benefit to the lower Murray. The resilience objectives in chapter 7 are also pertinent to the risks facing much of the Basin, including the lower Murray, as they are set out to ensure water-dependent ecosystems are resilient to risks and threats such as drought. The MDBA will prepare a Basin-wide environmental watering strategy within two years of the Basin Plan coming into effect. States will need to prepare long-term watering plan within 12 months of the strategy being made. These plans will be used to assist the Australian Government and states to provide water to areas such as the lower River Murray.

19.Issue

It was submitted that the management objectives and outcomes in the proposed Based Plan insufficiently addressed social and economic outcomes. Some submitters suggested including a new management objective and outcome in relation to social and economic matters.

‘The overarching Basin Plan Objective mentions “strong communities and a productive economy”. This does not manifest in the subsequent management objectives and outcomes. A productive economy is inferred under the long-term SDL objective, but it is not so clear. A separate objective around the community strength, resilience, adaptability and the resultant economic flow-on could add to the plan.’

RESPONSE

A large body of work has been considered with regard to development of social and economic objectives and outcomes, and how they are considered in determining the SDL. These include management outcomes that contribute to optimising social and economic outcomes, water security for all uses of the Basin’s water resources, providing greater certainty of access to Basin water resources, and improved adaptation to reduced quantities of available water. The objectives and outcomes in the proposed Basin Plan are compliant with the Act. This approach reflects MDBA’s intention for the Basin Plan to provide for a healthy working Basin.

MDBA agrees that these objectives and outcomes should be further strengthened and has made a number of amendments related to social and economic issues. These changes provide greater clarity on MDBA’s intention for the Basin Plan to provide for a healthy working Basin which includes improvements in social and economic outcomes for communities and industries.

Changes to the objectives in section 5.02 include establishing for the Basin water resources a sustainable and long-term adaptive management framework that takes into account the broader management of natural resources in the Murray–Darling Basin to optimise social, economic and environmental outcomes arising from use of Basin water resources in the national interest.