Conclusions and recommendations
7.1
Human induced climate change presents a grave threat to the environment
and our way of life. For the sake of the planet and the future generations who
will inhabit it, effective action at every level—globally, nationally and
locally—is essential to stop the effects of climate change from worsening. The
committee emphasises that Australia needs to substantially reduce our greenhouse
gas emissions and push for meaningful international action to address climate
change.
7.2
Much can be said about how the consequences of human induced climate
change will be significant and disruptive for many parts of the environment and
for human activity. This inquiry, however, has focused on a specific issue
that, to date, the committee considers has received less attention: the consequences
of climate change for marine fisheries and biodiversity. During this inquiry,
compelling expert evidence was presented to the committee about the current and
projected impacts of climate change on the marine environment. Rising ocean
temperatures, changes to ocean currents, increasing sea levels and acidification
of the surface ocean (from rising carbon dioxide levels in the atmosphere)
have been observed or are projected.
7.3
The implications for Australia will be significant. The south-east
region of Australia is already considered a 'hot spot' globally for warming,
with sea surface temperatures in that area warming faster than 90 per cent of
the world's oceans. Recent marine 'heat waves' and events such as coral
bleaching in the World Heritage listed Great Barrier Reef and other reefs have
already been observed.
7.4
Changes to the physical attributes of the ocean and other developments
linked to climate change, such as increased intensity of extreme weather
events, are expected to have implications for commercial fishing and
aquaculture, recreational fishing, Indigenous fishing and other industries that
rely on healthy oceans, such as tourism. Among other things, the distribution
and stock abundance of fish stocks may change and there could be an increased
variability of catch. This will have implications for the suitability of
existing approaches to fisheries management and for the structure of, and
employment in, the commercial fishing industry. The suitability of locations
for aquaculture may also change; for example, warmer ocean temperatures could
allow aquaculture of barramundi to extend south, however, salmon farming in
Tasmania is approaching its thermal limit.
7.5
There is also concerning evidence of disease outbreaks and biosecurity
risks linked to climate change. These events are already costing industry lost
production and revenue and may ultimately threaten businesses, investment and
employment. Governments will likely incur direct costs in response to outbreaks
of marine pests and diseases.
7.6
Effective adaptation to the effects of climate change on the marine
environment requires action by governments, industry and the community at
large. While many actions can be identified, the committee has focused on
recommendations that can be readily pursued by the Australian Government.
7.7
One area in which the Australian Government can make a significant
difference is by supporting research, specifically, by providing adequate research
funding and by ensuring industry can access and utilise scientific findings. There
are gaps in scientific knowledge about how climate change will affect the
physical attributes of the oceans and the implications this will have for
marine fisheries and biodiversity. At present, significant developments are
also likely to go unnoticed—in particular, the committee notes the
evidence received that mangrove dieback in the Gulf of Carpentaria was only
reported to experts five months after the event occurred. Evidence presented to
the committee clearly indicates that well-resourced monitoring and further
research to assess and understand changes on ecosystems and fisheries is required.
7.8
During this inquiry, the committee received evidence about private businesses
committing to improving scientific understanding of the effects of climate
change by funding research. The committee commends these efforts.
Well-resourced government-backed research, however, remains vital. The
committee urges the Australian Government to increase the funding available for
such research and to ensure funding is provided on a stable, long-term basis.
This is particularly important for long-term monitoring efforts such as the
Integrated Marine Observing System (IMOS).
7.9
In addition to the need for the overall funding allocated to climate
change research to be increased, the committee considers there are specific matters
that require government attention. For example, the committee notes that the
taxpayer funded RV Investigator is capable of spending 300 days at sea, yet
it is only funded by the government for 180 days at sea. Evidence presented to
the committee indicated that, in addition to the gap in government funding, there
are practical issues with the process for obtaining use of the vessel, with researchers
facing difficulties in ensuring the time granted for using the vessel suits
their funding arrangements. The committee urges the government to increase the
funding available for the use of this state-of-the-art vessel and to work with
CSIRO to improve processes associated with researchers gaining access.
Recommendation 1
7.10
The committee recommends that the Australian Government review the
funding provided for research into the effects of climate change on the marine
environment and possible adaptation measures to ensure the funding is
appropriate for facing the challenges of climate change.
7.11
The committee further recommends that the Australian Government commit
to allocating long-term funding for climate monitoring, such as the Integrated
Marine Observing System.
Recommendation 2
7.12
The committee recommends that the Australian Government review the
funding provided to operate the RV Investigator with a view to:
-
increasing the long-term funding provided by the Government; and
-
obtaining greater financial support from other parties, such as
through industry research partnerships.
7.13
The committee further recommends that the Australian Government review
the processes associated with researchers gaining access to the RV Investigator
with a view to increasing the number of days the vessel can be used for
research.
7.14
There is also a pressing need for the Australian Government to support
connections between researchers and industry so that research findings are used
to the full extent possible. The committee welcomes existing efforts, such as
CSIRO's collaboration with the aquaculture industry; however, far more work is
required.
7.15
In addition, the committee is concerned by the evidence received from the
fishing industry regarding the need for greater sharing of expertise and
coordination on biodiversity issues between different parts of the industry. Lessons
learnt from addressing challenges encountered in one part of the industry or
that arise in one particular geographic area may be of relevance to others. The
committee considers there would be benefit in the Australian Government
establishing a taskforce to consider how to facilitate greater coordination and
knowledge sharing on biosecurity matters within the fisheries and aquaculture
industries.
Recommendation 3
7.16
The committee recommends that the Australian Government take a national
leadership role in funding and supporting connections between the fishing and
aquaculture industry and research organisations to help industry understand and
adjust to the effects of climate change.
Recommendation 4
7.17
The committee recommends that the Australian Government direct the
Department of Agriculture and Water Resources to engage with industry
representatives to consider how information about responding to biosecurity
challenges can be shared more effectively within the fisheries industry.
7.18
The Australian Government can also provide further support to efforts by
organisations and Traditional Owners working to ensure Australia's marine
environment is healthy and productive and is used sustainably. Examples include
OceanWatch Australia (the marine NRM organisation) and the Indigenous Protected
Areas program.
Recommendation 5
7.19
The committee recommends that, as part of the National Landcare Program,
greater emphasis be placed on marine natural resource management and projects
be supported that will improve marine biodiversity and deliver sustainable
fisheries and aquaculture outcomes in the face of climate change.
Recommendation 6
7.20
The committee recommends that the Australian Government investigate
options to formalise and enhance engagement between Traditional Owners involved
in Indigenous Protected Areas, universities and relevant Commonwealth
departments and agencies regarding the effects of climate change on the marine
environment, including appropriate local management responses to changes and
emerging threats.
7.21
The Australian Government also needs to ensure that regulatory and administrative
arrangements are up-to-date and as effective as possible for responding to the
challenges presented by climate change. The committee accepts the evidence
provided by a range of government agencies that Australia's fisheries
management framework is responsive and well placed to adapt to climate change.
The committee also notes the evidence received that the offshore constitutional
settlement agreements for fisheries, which set out jurisdictional arrangements
for fisheries, are in the process of being updated. The committee supports this
work and urges the Australian Government to pursue this as a matter of urgency.
Recommendation 7
7.22
The committee recommends that the Australian Government expedite work to
update offshore constitutional settlement agreements regarding the jurisdictional
boundaries between fisheries.
7.23
During this inquiry, gaps in knowledge available to regulators involved
in fisheries management were brought to the committee's attention. One such gap
is in relation to recreational fishing. The committee was advised that
recreational fishers take more catch than commercial fishers for some key fish
stocks, yet the data about recreational fishing effort currently available for
informing fishery stock assessments and ecosystem risk assessments appears to
be inadequate.
7.24
To enhance data collection arrangements for recreational fishing, the
committee considers that consistent licensing arrangements should be in place
in all state/Northern territory jurisdictions. In making the recommendation,
the committee notes the Productivity Commission recently made a recommendation
that, within the next three years, all jurisdictions should require
recreational fishers to obtain licences for marine fishing activities. Although
this is a matter for the states and the
Northern Territory, this recommendation was supported by the Australian
Government and is supported by the committee.
7.25
Noting the evidence received during this inquiry regarding how
recreational fishing boats can be tracked and how citizen science projects such
as the Redmap program have been effective, the committee considers that the
state and Northern Territory governments should also consider how technology
could be used more effectively to support how recreational fishing activity is
accounted for in fisheries management.
Recommendation 8
7.26
The committee recommends that state and Northern Territory governments
give effect to recommendation 4.1 of the Productivity Commission's report Marine
fisheries and aquaculture relating to licence arrangements for recreational
fishers.
Recommendation 9
7.27
The committee recommends that state and Northern Territory governments
explore innovative methods to capture recreational fishing data.
7.28
More generally, the committee considers there is a need to ensure that
consideration of climate change is a mandatory requirement as part of decision‑making
under Commonwealth, state and territory environmental and resource management
legislation.[1]
In particular, the Environment Protection and Biodiversity Conservation Act
1999 should be amended to establish a greenhouse trigger that ensures
Commonwealth oversight of proposed actions that will have, or are likely to
have, a significant impact on greenhouse emissions.
7.29
Incorporating the need to mitigate and adapt to climate change in
decision-making frameworks would complement and reinforce well‑understood
principles, such as inter-generational equity, and is appropriate given the
seriousness of Australia's exposure to climate change related threats. Decision‑makers
should have the impacts of climate change at the forefront of their mind when
assessing proposals under environmental and resource management legislation.
Recommendation 10
7.30
The committee recommends that the Australian, state and territory
governments review all environmental and resource management legislation to
ensure that adequate consideration of the effects of climate change is
expressly required as part of assessment and decision-making processes.
7.31
In particular, the committee recommends that establishing a greenhouse
trigger be included in the upcoming independent review of the Environment
Protection and Biodiversity Conservation Act 1999.
7.32
The committee has also considered a proposal for the creation of a
National Oceans Commission to coordinate existing Commonwealth and state
agencies activities and set a direction for future innovation and activities
that support enhanced resilience of the marine environment. The proposal was
raised at the second public hearing and it became apparent during the remaining
stages of the inquiry that key stakeholders have not considered it.
Consequently, the committee is not in a position to endorse or reject the
proposal based on the evidence received during this inquiry.
7.33
The committee considers that whether a National Oceans Commission should
be created is a question that requires further dedicated consideration and
consultation. Moreover, the committee notes that the aims of a National Oceans
Commission could potentially be achieved by other means. As an alternative, the
committee considers the addition of a dedicated oceans outcome to the
Department of the Environment and Energy's responsibilities should also be
considered. The committee recommends that the Australian Government commence a
process for examining these proposals in detail.
Recommendation 11
7.34
The committee recommends that the Australian Government commission a
feasibility study into the creation of a National Oceans Commission or consider
establishing a dedicated oceans outcome as part of the Department of the Environment
and Energy's responsibilities.
7.35
Finally, the committee comments on marine parks. Marine parks provide a
means to actively protect species and habitats in the marine environment,
resulting in healthier ecosystems that are more resilient to the effects of
climate change. Effective networks of marine parks are particularly important
as they ensure that species can move between protected areas and allow for the
benefits of marine parks to be maximised. Given the changing climate and the
other cumulative pressures the oceans face due to human activity, the committee
regards a large and well-managed network of marine protected areas as being
essential for conserving marine ecosystems and biodiversity. Accordingly, the
committee recommends that the network of marine parks established by the Labor
Government in 2012 be maintained. Additions to the national network should also
be made if developments since 2012 mean that greater conservation efforts in
particular areas are required.
7.36
On the Great Barrier Reef Marine Park, the committee has carefully considered
the evidence received during this inquiry about the content and operation of the
Reef 2050 Long-Term Sustainability Plan. Despite being described as the overarching
framework for protecting and managing the Reef until 2050, the plan inadequately
addresses climate change, which the Great Barrier Reef Marine Park Authority
(GBRMPA) acknowledges is the most serious threat to the Great Barrier Reef.
7.37
The committee considers that the Australian and Queensland Governments
need to take further action urgently to protect the Great Barrier Reef. The
committee has already emphasised the need to substantially reduce Australia's
greenhouse gas emissions and for the Australian Government to push for
meaningful international action to address climate change. These actions are
essential to protect the Reef for future generations.
7.38
Other specific actions can also be taken. The committee notes that in
May 2017, the Reef 2050 Independent Expert Panel called for the Reef 2050
Plan to be amended to:
-
include climate change adaptation and mitigation actions;
-
provide a focus on a sustainable, functional Reef in the face of
emerging cumulative impacts; and
-
provide a greater emphasis on empowering local people and
communities to deliver on-ground action that will benefit the Reef.
7.39
At a minimum, these changes to the Reef 2050 Plan that were recommended
by the Independent Expert Panel should be made.
7.40
In addition, a straightforward action the Australian Government can take
is to increase funding for the GBRMPA to ensure it is resourced appropriately
for addressing the various pressures the Reef is under. The committee
notes that additional funding was recently provided to GBRMPA, nevertheless,
the recent review of the governance of the Great Barrier Reef Marine Park
Authority undertaken by Dr Wendy Craik AM noted a decline in staffing numbers over
time as departmental funds for core staffing decreased in real terms.[2]
Recommendation 12
7.41
The committee recommends that the network of marine parks established in
2012 by the Gillard Government be maintained and that additions to the network
be made if developments since 2012 mean that greater conservation efforts in
particular areas are required.
Recommendation 13
7.42
The committee recommends that the Australian and Queensland Governments
amend the Reef 2050 Long-Term Sustainability Plan so that the plan:
-
includes climate change adaptation and mitigation actions;
-
has a focus on a sustainable, functional Reef in the face of
emerging cumulative impacts; and
-
provides greater emphasis on empowering local people and
communities to deliver on-ground action that will benefit the Reef.
Recommendation 14
7.43
In light of climate change pressures, the committee recommends that the
Australian Government review the funding provided to the Great Barrier Reef
Marine Park Authority to ensure it is adequately resourced to meet its
functions under the Great Barrier Reef Marine Park Act 1975.
7.44
This inquiry has provided a valuable and timely opportunity to focus on
the health of the oceans and the consequences of climate change. The oceans cover
more than 70 per cent of the Earth and the health of the global ocean is vital
for life on this planet. However, in the committee's view, discussion of the
consequences of climate change for the oceans has not received the attention it
deserves. Likewise, the actions taken to date to mitigate the harm caused by
climate change, and the other pressures oceans are under due to human activity,
have not been sufficient.
7.45
The committee reiterates its comments made at the start of this report
thanking the individuals and organisations that contributed to this important
inquiry. The committee urges the Australian and state governments to act on the
committee's recommendations and to take whatever additional actions are
necessary to support healthy oceans.
Senator Peter
Whish-Wilson
Chair
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