DISCUSSION PAPEROn-water access for non-powered watercraft, Devilbend Natural Features Reserve, January 2017

1. PurposeThis discussion paper has been prepared to help inform Parks Victoria’s plan to allow non-powered watercraft such as kayaks and canoes to access a section of Devilbend Reservoir for recreational activities. The paper presents background information on the environmental values of the reserve, recreational opportunities as well as information on the benefits and challenges and aims to generate discussion and feedback from interested stakeholders.

The Devilbend Natural Features Reserve Management Plan made provision for shore-based fishing in designated areas and potential future on-water recreational activities by non-powered watercraft such as canoes and kayaks only within the Conservation and Recreation Zone. Parks Victoria intends to amend the zoning in the management plan to allow non-powered watercraft access to a section of the reservoir (Figure 3, page 10).

How to have your sayWe invite your comments on the plan to allow non-powered watercraft such as canoes and kayaks to access a section of Devilbend Reservoir, Devilbend Natural Features Reserve.

The information provided in this discussion paper intends to stimulate thinking about the opportunities and issues presented. You may choose to respond directly to the issues presented or make a general comment on the topic.

You can

Contact Parks Victoria on 131963 for further information or to comment verbally Email your thoughts and ideas to melbournecommunity@parks.vic.gov.au - please

include “Devilbend” in the subject line Submit a response by post to Bill Mallinson, Parks Victoria, 2 Hinton St, Rosebud,

3939

The closing date for submissions is Friday 24 March 2017.

If you make a submission, all or parts of your submission may be used in subsequent reports or summaries. If you prefer your submission to be confidential you can specify this when you make your submission. Submissions may be subject to Freedom of Information laws. Parks Victoria reserves the right not to publish information that could be seen as defamatory or discriminatory.

2. Recreational opportunities at Devilbend ReservoirParks Victoria recognises boating, such as canoeing and kayaking as popular activities for visitors to enjoy parks and their natural settings. In keeping with the Healthy Parks Healthy People philosophy, providing opportunities such as these activities contributes to the physical, mental and social health benefits of people.

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Canoeing and kayaking is popular in many parks and reserves and provides general sightseeing and nature appreciation experiences. While Port Phillip and Western Port Bay provide major opportunities for these activities, Devilbend provides an opportunity for a unique nature-based experience on the Mornington Peninsula and the outer south-east metropolitan area of Melbourne. The use of non-powered watercraft such as canoes and kayaks also provides opportunities for recreational activities for families and school groups as well as improving fishing experiences.

During the preparation of the Parks Vitoria Devilbend Natural Features Reserve Management Plan (2010), the Victorian recreational fishing peak body, VRFish presented 3 options for access to the planning team and community based Advisory Group for consideration. In relation to on-water access for non-powered watercraft, VRFish sought the following options:

Access to all water Access to all water with no landing on conservation shorelines Access to all water but limited numbers at any one time (with management via a

permit system)

Since the approval of the management plan for the reserve1, Parks Victoria has received regular requests from the fishing community for on-water access to enhance fishing experiences and improve fishing success. Much of the water close to the shoreline is relatively shallow and has significant growth of aquatic weeds and vegetation reducing fish numbers caught and causing issues with snags and loss of line and tackle. Access to deeper water is being sought to improve the chances of catching trout species which have a preference for cooler, deeper water towards the centre of the reservoir, particularly in summer.

The current extent of the shoreline available for fishing at Devilbend Reservoir is almost 18% or approximately 2.14 km of a total of 12 km of shoreline. A fishing platform has been installed to enhance fishing experiences, and will be extended in the near future.

2. Biodiversity values Devilbend Natural Features Reserve is of high conservation significance containing two Biosites2 and the Devilbend Reservoir is recognised as an Important Bird Area (IBA), an area recognised by BirdLife International as being globally important for the conservation of bird populations. The 243 ha Devilbend Reservoir was included as an IBA because it supports, seasonally, over 1% of the global population of the Blue-billed Duck which is listed as threatened under the Flora and Fauna Guarantee Act 1988.

The reserve supports species of international and national significance providing habitat for 44 species of waterbird and shorebird including 14 international migratory bird species and 8 species listed as threatened under the Flora and Fauna Guarantee Act.

1 Parks Victoria, May 2010, Devilbend Natural Features Reserve Management Plan2Practical Ecology Contracting and Consulting in Ecological Restoration and Environmental Planning, May 2008, Flora and Fauna Assessment and Recommendation Report, Devilbend Reserve (Daangean)

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BirdLife Australia volunteers have been monitoring birds in the Devilbend Reserve and adjacent Woods Reserve since 2004 with regular monthly birds counts providing data on species and numbers for almost 12 years.

An Ecological Risk Assessment undertaken in 2007 by Parks Victoria and key stakeholders to inform the management plan scored unrestricted water based recreation as a moderate to high risk on waterfowl.3

The Devilbend Natural Features Reserve Management Plan identified that boating, such as kayaking and canoeing, may pose a high risk to waterbirds and habitat values and that these activities would only be considered following:

an assessment of how opening the reserve to shore-based recreation has impacted on waterbirds, and

further investigation to assess impacts of on-water activity

A response to the above listed requirements of the management plan is presented below.

3. Observed impacts of opening Devilbend Natural Features Reserve to shore-based recreation on waterbirdsA report completed by the Arthur Rylah Institute for Environmental Research (ARI) in 2009 identified that most waterbird species that regularly inhabit Devilbend are fairly common in Victoria with the exception of a regular non-breeding flock of Blue-billed Duck and a resident pair of breeding White-bellied Sea-eagles (both listed under the FFG Act). ARI identified other notable species, on the basis that Devilbend may sometimes provide significant habitat in a State context, included the Great Crested Grebe, Latham’s Snipe and Australasian Bittern 4

(the latter two also FFG listed). BirdLife Australia has been collecting data from Devilbend since 2004 from a monthly count of all species seen by the local group. The data from the afore mentioned notable species is described below, including numbers of individual species counted prior to and post the opening of the reserve in 2012.

Since the Daangean Point area was opened in November 2012, annual visitation has been low and is estimated at less than 15,000 people per annum, with peaks of up to 100 on busy days during holiday periods and public holidays. Occasional fishing events have occurred with between 10 and 40 participants.

3.1 Blue-billed Duck Figure 4 shows the number of Blue-billed Duck recorded at Devilbend Natural Features Reserve sourced from BirdLife Australia over the period 2004 – 2016. The number of Blue-billed Duck recorded by BirdLife Australia volunteers at Devilbend has varied significantly over the period from 2004 to 2016 as shown in Figure 4 with a peak of 3,100 in 2006 which coincided with the lowest rainfall recorded during the same period. This confirms the reservoir as important habitat for the species during periods of drought, where other

3 Parks Victoria, November 2007, Devilbend Reserve Ecological Risk Assessment4 Stamation, K. and Loyn, R (2008) Impact of recreational access and stocking on waterbirds and shorebirds – Devilbend Reserve. Arthur Rylah Institute for Environmental Research Technical Report Series. Department of Sustainability and Environment, Heidelberg, Victoria.

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waterbodies may have been depleted. No Blue-billed Duck were recorded from May 2010 through to March 2013.

The Daangean Point area of the reserve was opened to visitors in November 2012 and Blue-billed Duck returned in April 2013 (with a peak of almost 400 in May 2013). To date in 2016, numbers have slightly declined with a peak of 200 recorded in March. Numbers of Blue-billed Duck are generally historically low or absent during the period from July to February including the peak visitor period from December to January.

While observed in most areas of the reservoir, Blue-billed Ducks have a preference for the deeper water in the centre of the reservoir and along the bank closest to Derril Road, as observed by BirdLife Australia and ARI. Anecdotally, flock numbers can range from individuals or small groups of three or four to much larger numbers in the hundreds and up to 3,100 spaced out across the reservoir. The yellow shaded area shown on Figure 1 is the area where BirdLife Australia has observed the highest concentration of Blue-billed Ducks over time. 5

Figure 1. Highest concentration of Blue-billed Duck, Devilbend Reservoir, BirdLife Australia

3.2 Other significant waterbird speciesThe White-bellied Sea Eagle is a significant species which regularly nests at Devilbend and is often observed circling above the reservoir. While breeding data has not been collected for this species, Figure 5 shows certain years where three individuals have been observed. As raptors are prone to abandoning nest sites due to disturbance, the 2009 ARI report notes

5 Source: Roger Richards, BirdLife Australia 30 August 2007

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that “Disturbance also needs to be avoided within 500m of the White-bellied Sea-eagles’ nest, and close to any other important breeding sites that may be found.” ᶟ The proposed boating zone allows for the recommended buffer to ensure the nest site remains undisturbed.

Figure 7 shows a single sighting of the federally endangered Australasian Bittern recorded by the local BirdLife group at the reservoir. Historical records exist for this species at Devilbend, which is found in coastal and sub-coastal areas of southern Australia.

A small population of Caspian Terns are known to frequent Devilbend Reservoir, with a known nesting site recorded within the reserve. Breeding data has not been collected for this species, however Figure 8 shows a maximum of 7 individuals seen by the local BirdLife group in 2008, and lows of one individual seen in 2011, 2012 and 2016.

While the Great Crested Grebe is a secure species both in Victoria and nationally, the 2009 ARI report notes that these species are sparsely distributed within southern Australia, and have similar habitat requirements to Blue-billed Ducks. Figure 9 shows sightings of high numbers in 2006 and 2008 of 32 and 34 individuals and lowest numbers recorded in 2010 of 6 individuals and 2012 of 4 individuals. Since the reserve opened to the public in 2012 numbers recorded by the BirdLife group have fluctuated between groups of 10 to 26 sighted during the monthly counts.

Small numbers of Latham’s Snipe are frequently recorded during the BirdLIfe monthly counts at Devilbend Reservoir. Figure 10 shows a maximum of 6 birds sighted in 2005, with sightings slowly declining since with 1 bird sighted in both 2014 and 2015 and no birds sighted in 2016 to date.

3.3 Eurasian CootWhile not a significant species, bird observation records show that large numbers of Eurasian Coots use the area of Devilbend Reservoir adjacent to the Devilbend Picnic Area and part of the shoreline access track. The western shoreline and the deeper water adjacent to the reservoir wall was included in the Conservation Zone due to use by Coots and other waterbirds, and the presence of vegetated shoreline habitat. Eurasian Coots have also been known to provide a food source for the resident breeding pair of White-bellied Sea-eagles.

The number of Eurasian Coots recorded by BirdLife Australia volunteers at Devilbend has also varied significantly over the period from 2004 to 2016 as shown in Figure 6 with a peak of 9,000 in 2012 to a low of 600 in 2011. Following the opening of Daangean Point in November 2012, the highest ever monthly record of 9,000 was recorded in December 2012 and 5,000 were recorded in January and February 2013. Since 2013, numbers have declined each year with the largest number recorded so far in 2016 of 2600.

4 Potential impacts of on-water access by non-powered watercraftIn 2015 Parks Victoria commissioned the Arthur Rylah Institute for Environmental Research to investigate the impacts of non-powered watercraft on Blue-billed Duck and other waterbirds at Devilbend. The study aimed to determine the impacts through a flight initiation distance (FID) survey. Surveys involved measuring the response of Blue-billed Ducks and other waterbirds to deliberate approaches made by a single kayak.

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The report conducted by ARI in 2015 identified that an approaching kayak caused some disturbance to Blue-billed ducks from a significant distance, with a mean FID (escape distance) of 186 ± 79 metres, and a maximum FID of 300 metres.

The results of the survey revealed that Blue-billed ducks were sensitive to the presence of kayaks at great distances, with a mean FID (escape distance) of 186 ± 79 m, and a maximum FID of 300m. The mean FID recorded for Blue-billed duck during this survey is higher than the mean FID for any other waterfowl species in a recently compiled global database of bird flight initiation distances. It was also the strongest response during the survey, with flight initiation distances for other species ranging from 142 m for the Great Cormorant (Phalacrocorax carbo) to 40 m for the Black-winged Stilt (Himantopus himantopus).6

While the survey recorded FID results for other species where possible, it focused on Blue-billed Duck due to the status of the species, and the resources available. Results for other species included a mean FID of 73.1 metres for Eurasian Coot, however, other notable species such as Great Crested Grebe, Latham’s Snipe and Australasian Bittern were not seen during the survey, and therefore potential impacts are unknown for these species. As the Blue-billed Duck showed the strongest response to the presence of kayaks during the survey, the recommendations made by ARI have provided for this level of susceptibility to disturbance to accommodate other waterbird species.

While Blue-billed Ducks were observed across the reservoir during the survey, the majority were observed in the central and east-south-east section of the reservoir where deeper water provides feeding habitat, this is consistent with observations made by local BirdLife Australia groups.

Impacts on Blue-billed Duck will most likely be influenced by the level of on-water recreational use and period of use. The level of use is not expected to be high due to constraints posed by a need to carry or convey craft on hand trolleys to a suitable launching site and the availability of extensive opportunities on the peninsula coastline.

As Blue-billed Ducks frequent the reservoir on a seasonal basis, impacts are likely to be minimal between July and February when the species are either absent or in low numbers. This period coincides with a significant part of the peak visitor period, and is likely to be the peak time for kayakers using the reservoir.

Impacts on Caspian Tern breeding success is likely to be minimal as the only known shoreline breeding site is within the Conservation Zone and within the proposed boating exclusion zone. There are also extensive areas of shoreline within the Conservation Zone and proposed boating exclusion zone where breeding may occur.

6 Stamation, K, Moloney, P. and Menkhorst, P (2016). Flight Initiation Distances of Blue-billed Ducks in response to Non-motorised Watercraft at Devilbend Reservoir. Arthur Rylah Institute for Environmental Research Technical Report Series No. 268. Department of Environment, Land, Water and Planning, Heidelberg, Victoria.

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5 Management of on-water access by non-powered watercraftParks Victoria plans to open a section of the reservoir to non-powered watercraft such as canoes and kayaks in order to provide on-water recreational access to Devilbend Reservoir while minimising impacts to significant bird life. The key recommendations from the 2015 ARI report to manage on water access at the reservoir are described below.

Arthur Rylah Institute key recommendations for use of non-powered watercraft on Devilbend Reservoir

1. Establish an exclusion zone within Devilbend Reservoir that is off limits to all boats. This would need to include a sufficient area of quality habitat to provide for the needs of up to several hundred Blue-billed Ducks for the duration of the disturbance.

2. Quantify and map Blue-billed Duck feeding habitat (and potential breeding habitat) to help better inform the appropriate extent and location of the exclusion zone.

3. Limit water access to one designated launching site.4. Control the number of boat users permitted on the reservoir at any one time.5. Review these recommendations following further monitoring of non-powered boat

launch rates, and numbers, behaviour, and distribution of Blue-billed Ducks under the changed conditions.

Zone changes

Parks Victoria plans to establish a boating exclusion zone across the eastern section of the reservoir (see Figure 2), as recommended by Arthur Rylah Institute. The intent of the exclusion zone is to restrict all boating from the largest portion of the key habitat area for Blue-billed Duck populations as well as to protect other significant water birds.

A significant part of the waters of Devilbend Reservoir and Bittern Reservoir will remain as Conservation Zone and will not be available for on-water recreational use. These conservation areas will ensure that waterbirds will continue to have substantial refuge from disturbance associated with on-water activities, as well as shore-based recreation as identified in the ARI assessment of recreational access undertaken for the reserve in 2009.

To allow for restricted on-water access as shown in Figure 2, Parks Victoria plans to re-zone parts of the waters of Devilbend to Conservation and Recreation Zone (see Figure 3) by amending the Devilbend Natural Features Reserve Management Plan.

The designated boating zone will be identified with marker buoys to define boundaries and signage will be installed to inform users on restrictions. This will ensure that key species such as the Blue-billed Duck will continue to have large areas of habitat available with minimal disturbance.

Boat launching facilities

Boat launching facilities are to be located near the existing visitor node accessed from Graydens Road (Figure 2). They may be in the form of a simple ramp or more formal floating pontoon, similar in design to the existing fishing platform. There is also the option to provide launch facilities from the existing fishing platform, involving the addition of an add-on structure.

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Visitor numbers

The number of park visitors accessing the water with non-powered watercraft at Devilbend Reservoir is expected to be low given the current annual visitation at the reserve, as well as other boating opportunities on the Mornington Peninsula. Group numbers interested in utilising access to the reservoir may also be controlled via Parks Victoria’s permit system. Parks Victoria reserves the right to close the reservoir to all watercraft in circumstances where there is a risk of disturbance to large numbers of Blue-billed Duck or other significant species. This may be the case in periods of drought where the reservoir can act as a refuge for waterbirds, as was the case in 2006 where other waterbodies had been depleted.

The planned management actions described aim to strike a balance between providing recreational opportunities at the reserve and protecting important species and associated habitats.

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Figure 2. Planned boating zones for non-powered watercraft

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Figure 3. Planned management zone change to allow access to non-powered watercraft

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AppendicesFigure 4. BirdLife Australia monthly count records for Blue-billed Duck

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Figure 5. BirdLife Australia monthly count records for White-bellied Sea Eagle

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Figure 6. BirdLife Australia monthly count records for Eurasian Coot

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Figure 7. BirdLife Australia monthly count records for Australasian Bittern

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Figure 8. BirdLife Australia monthly count records for Caspian Tern

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Figure 9. BirdLife Australia monthly count records for Great Crested Grebe

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Figure 10. BirdLife Australia monthly count records for Latham’s Snipe

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