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TheLongandWindingRoad:thedevelopmentofaComprehensive,AdequateandRepresentativeSystemofHighlyProtectedMarineProtectedAreasinVictoria,Australia.
GeoffWescott,
SchoolofEcologyandEnvironment,
FacultyofScienceandTechnology,
DeakinUniversity,MelbourneCampus,
221BurwoodHighway,
Burwood3125
Victoria,Australia
Fax:61392517626
Keywords:HighlyProtectedMarineProtectedAreas,Australia
Abstract
In2002thestateofVictoria,Australiaincreaseditsno-takeMarineProtectedAreas(MPAs)100foldtocoverover5%ofitscoastalwatersinacomprehensive,adequateandrepresentativesystemofmarinenationalparksandsanctuaries.GiventheambitioustargetssetforMPAestablishmentgloballyin2003attheWorldSummitforSusta
inableDevelopmentthisapparentlyremarkableachievementcouldbeanexampletoothernationsandstatesattemptingtoestablishsubstantialMPAsystems.
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ThispaperdescribesanddiscussesthefactorswhichcontributedtotheestablishmentoftheVictoriansystemandtherelevanceofthesefactorstootherjurisdictions.
1.0IntroductionAttheWorldParksCongressinDurban,SouthAfricainOctober2003thepercentageoflandreservedinProtectedAreaswasreportedtobeapproximately11.5%oftheEarthstotallandarea[1].ThepercentageofseainMarineProtectedAreas(MPAs)wasreportedtobelessthan0.5%oftheworldsoceans[2.].MPAsmadeuplessthan10%ofallprotectedareas,despitetheoceansoccupying71%oftheplanet.Thiswasdescribedasunfortunate.TherehadbeenverylittleincreaseinreservationofMPAssincethepreviousCongressinCaracasin1992whereatargetof20%oftheoceansbeingprotectedinMPAsby2002wasset[3].
ThefailuretogetanywherenearthetargetwasdespiteconsiderableeffortsatpublishingtheextentofMPAsintheinterim(eg.[4,5])providingguidelinesfortheir
establishment(eg.[6]),publicisingtheirroleinbiodiversityconservation(eg.[7,8,9,10])andencouragingtheirselection,declaration,designandmanagement(eg.[11;1213;14;15;16;17;18;19;20,21]).
Thismodestachievementof0.5%whenaimingat20%makesthetargetsetatthe
WorldSummitonSustainableDevelopmentinJohannesburgin2002ofaglobalrepresentativesystemofMPAsby2010[22]averyambitiousoneindeed.PossiblythefirstInternationalMarineProtectedAreaCongress(IMPAC)tobeheldinGeelong,Victoria,AustraliainOctober2005hostedbytheInternationalUnionforthe
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ConservationofNatureandNaturalResources(IUCN),theGreatBarrierReefMarineParkAuthority(GBRMPA)andParksVictoria(PV)willaccelerateprogress.
NeverthelesstheliteraturequotedaboveconcentratesonguidelinesfortheestablishmentofMPAsandmanagementandplanningofMPAsonceinexistence.ThereisverylittleliteraturedocumentingsuccessfulexamplesofhowthedeclarationofactualMPAswasachievedasmodelsfornationsandregionsattemptingtomeettheambitiousMPAtargets.Therearepapers(eg.[23;24;25;26;27;28])oncommunityengagementinMPAprogramsandmonitoringwhichhighlightsomeofthecommunityconcerns(oftenfromfishinginterests)whichmayhaveinhibitedthedeclarationofsubstantialMPAsbutfewerreferencesongeneralcommunityattitudes(eg.[29]).
Inconclusiontheliteratureiscomposedofsubstantialworkonthedesign,planningandmanagementofMPAsandreportsonhowMPAsthatareinexistenceare
actuallyperforming.Therearesomepapersonconsultationprocesses,particularlyastoengagingthe,usuallyanti-MPA,fishingfraternitypostMPAestablishmentbutveryfewonexamplesofsuccessfuldeclarationsofMPAsasmodelsforthehugeincreaseinMPAsthatisnecessaryifthelatesttargetfromWSSDistobemet.
AgainstthesedisappointingachievementstheincreaseinMPAsinthesouth-easternAustralianStateofVictoriaisstartling.Victoriapossesses2,000kilometresof
southfacingcoastlinewithtemperatewatersoffthecoastsupportingsubstantialendemicpopulationsoffloraandfaunaVictoriahasbeenabletoreportthatithaddeclaredinNovember2002over5%ofitscoastalwatersashighlevelprotection(i.e.socalledno-
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takereserves)marinenationalparksandmarinesanctuariesinacomprehensive,adequateandrepresentative(CAR)sampleofitsmarinehabitats[30].Thiswasafivehundredfoldincreaseinhighlyprotectedareasinonepieceoflegislation.
Howdidthisoccur?WerethereuniquefactorsoperatinginVictoria?AretherelessonsfromtheVictorianexperiencewhichmaybevaluabletoothernationsandstatesattemptingtosubstantiallyincreasetheirMarineProtectedArea(MPAs)systems?
Thispaperwillattempttoanswerthesequestions
Aswithallsuchsuccessstoriestherealitiesoftheachievementarenotnecessarilyasspectacularaswouldfirstappear.TheVictorianstorystartsin
May1982whentheGovernmentoftheStateofVictoriacommitteditselftotheestablishmentofacomprehensiveandrepresentativesetofmarineprotectedareas(MPAs)inVictoriascoastalwaters.TwentyyearslaterinMay2002Victoriapossessedamosaicofeightmultiple-useMPAsalmostrandomlyplacedalongthecoastlineaswell
as14intertidalextensionsofterrestrialnational,stateandcoastalparks.ThetotalareaofMPAscoveredlessthan0.05%ofStatecoastalwaterswithlessthan0.01%beinginhighprotection[31]orwhatarecommonlyreferredtoasnotakeMPAs.
ButbyNovember2002theGovernmentofVictoriahadproclaimed13MarineNationalParksand11MarineSanctuaries,allhighprotectionreservescovering5.3%ofVictoriascoastalwaters.Thispaperattemptstodiscussthereasonsbehindthissuddenincreaseinareaaftertwentyyearsofveryslowprogress.Theapproachtakenisto
describethechronologyofthedevelopmentofVictoriasMPAsystemfromthedateofthedeclarationofthefirstMPAin1979throughtothedeclarationofthesuiteofno-takeMPAsinNovember2002.Fromthisdescriptionaseriesofobservationsonfactors
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whichmayhaveinfluencedtheprocess(bothnegativelyandpositively)andothercharacteristicfeatures,orthemes,whichdevelopedoverthetwentyyearperiod,willbedescribed.Finallythesefactors,featuresandthemeswillbereviewedtoisolatewhichhadthemostsignificantimpactonthesuccessfuldevelopmentoftheMPAsysteminVictoria,Australia.Thesefactorsmaybeofvaluetoothernations,statesorprovinceswhohavefounditdifficulttoestablishMPAs,particularlyhighprotectionortemperatewaterMPAs,intheirownjurisdiction.
Beforeproceedingafewdefinitionsarenecessary.InthispaperaMarineProtectedAreaisdefinedas:anyareaofintertidalorsubtidalterrain,togetherwithitsoverlyingwaterandassociatedfloraandfauna,historicalandculturalfeatures,whichhasbeenreservedbylaworothereffectivemeanstoprotectpartoralloftheenclosedenvironment[32].AhighlyprotectedMPAisdefinedasaMPAwhichisclassifiedas
eitherCategoryIorIIintheIUCNsystem[33].Oftenashorthandnotationofno-takeisusedtodescribemostsuchMPAsasusuallythereisabanonallformsofextractionoflivingresources(eg.fishing)andmostoftengas,oilandminerals.
FinallyaComprehensive,AdequateandRepresentative(CAR)systemofMPAsisdescribedasasystemwhichprotectsafullrangeofhabitatsandcommunitiesineachregion(comprehensive),withboundariesestablishedfortheMPAwhichensureasufficientsizeandarepracticalenoughtominimiseexternalnegativeinfluence
s(adequate)andwhichreflectswithintheboundariesthediversityoffloraandfaunaintheprotectedhabitatsandcommunities(representativeness)[34].
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2.0Background2.1.AustraliasMarineProtectedAreaSystem.
AustraliapossessesoneofthelargestExclusiveEconomicZones(EEZs)intheworld[35]atleast11millionsquarekilometreswiththeseaareabeingtwicethesizeofAustraliassubstantiallandarea.UndertheAustralianConstitutiontheCommonwealthornationalGovernmenthasresponsibilitiesforthevastmajorityofthisseaareabuttheStateandTerritoryGovernmentsretaincontrolovermostcoastalwaters(usuallydefinedasextendingouttothreenauticalmilesfromthecoastline[36,37].ThedevelopmentofMPAsinAustraliahashadasitsbasistheworkofNon-
GovernmentOrganisations(NGOs).Inparticularpioneeringworkbyvariousauthorseg.
Eg.[38,39,40,41,4243]),theFourthFennerEnvironmentConference1991inCanberra([44]andseeparticularly[45,4647and48])laidasolidbasefortheprogramdescribedbelow.Policyaspectshavealsobeendescribedbyvariousauthors[49,50and51]witharecentoverviewbeingproducedbyEdyvaneandLockwood[52]
SomeoftheseinitiativeshavereceivedGovernmentassistanceandtherehasbeen
asubstantialGovernmentinitiativesaswelleg.AnearlyinventoryofMPAsinAustralia[53]aStateoftheMarineEnvironmentReport[54]whichincludeddetailsofMPA
sinanannexereport[55]andgovernmentpolicydocumentsincludingabioregionalisationsystem[56]andanactionplanandguidelines[57].
TheCommonwealthsMPAProgram[58]isbeingdevelopedinco-operation
withtheStateandTerritoryGovernmentsinAustraliaaspartofthe(Australian)NationalRepresentativeSystemofMPAs(NRSMPA).TheprimarygoaloftheNRSMPAisto
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buildasystemofMPAswhichiscomprehensive(coveringallecosystemspresentinAustralianwaters),adequate(thesizeandnatureofthesystemmaintainstheintegrityofecologicalprocesses)andrepresentative(theindividualMPAsreflectthehabitatstheyrepresent).TheacronymtosummarisethisapproachisCAR.
FurtherdetailsoftheNRSMPAcanbefoundinthestrategicplanofaction
(includingguidelinesforestablishingtheNRSMPA)producedbytheAustralianandNewZealandEnvironmentandConservationCouncil[59](ANZECCwastheCouncilofState,TerritoryandNationalMinistersconcernedwithenvironmentandconservationmatters).ThisplansetsoutaseriesofpriorityactionswithinanationalandinternationalcontextaswellasdescribingthethencurrentstatusoftheNRSMPA,includingtheuseoftheInterimMarineandCoastalRegionalisationforAustralia(IMCRA)asthebioregionalframeworkforlocatingtheMPAsintheCARsystem.
In1999ofthe60Australian(IMCRA)bioregions21bioregionshadnoMPAS,
21hadMPAScoveringlessthan1%andfivehadbetween1and10%coveragei.e.Twothirdsofthebioregionshadlessthan1%oftheirareainMPAs.TheplanalsoshowedthattheStatesandTerritoriesallhadpoliciesconcernedwithestablishingMPAsatvariouslevelsofdevelopment.Intermsofthetype(thedegreeofprotectionaffordedbyMPAs)theplanstatesTheNRSMPAwillaimtoincludesomehighlyprotectedareas(IUCNCategoriesIandII)ineachbioregion[60].CresswellandThomas[61]have
reportedtheextentandtypeofMPAsinAustralia.
SincetheplanwaspreparedtheCommonwealthGovernmenthasdeclaredinthe
watersunderitsjurisdiction,fivenewMPAs(mostbetween1999and2002).ThereisnoreliableassessmentoftheperformanceoftheStatesandTerritoriesbutoutsidetheGreat
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BarrierReefMarinePark,whichhassubstantiallyincreaseditshighprotectionareas(butnottheoverallsizeoftheMPA),therehasbeenveryfewnewMPAscreated.HencetheNRSMPAappearstohaveledtoaimmediateincreaseinCommonwealthMPAsbutthishasnotbeensustainedandhasnotresultedinsubstantialincreasesinStatedeclarations(withtheexceptionofVictoria).
Intotalin2002therewere192MPAs(with17differentnames)inAustralian
waterscoveringapproximately64millionhectares[62]
InsummaryAustraliahasachievedsubstantialprogressinMPAdeclarationwhen
comparedtoglobalachievementsandisrecognisedasaworldleaderinMPAdevelopment.Thisprogressthoughisnotuniformacrossthenation(StateandTerritoryperformanceincoastalwaters,wherepressuresaregreatest[63]hasbeenpatchyandmediocreatbest)oracrossthemajorbioregionsintheEEZ.TherehasbeenanexpectationthattheimplementationofAustraliasOceansPolicy[64,65;66;67]
throughRegionalMarinePlanswillseeamoreCARsystemofMPAsform.ButafterfouryearsofpreparingthefirstRMPforsoutheasternAustralia[68]notonesingleadditionalMPAhasbeendeclaredinthisregionsCommonwealthcontrolledwaters.InpartthesegenerallypositiveachievementsmayberelatedtotheemphasisinAustralianliteratureonhowtodevelopaMPAssystemincontrasttothegloballiteraturewhichtendstoconcentrateonpostdeclarationplanningandmanagement.TheleadershiproleoftheNGOsectorandtheGBRMPAhavealsobeentellingfactorsalthoughMPAincreases
havebeenstronglyopposedbythefishingandminingsectorsinAustraliaaselsewhere.
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2.2.VictorianCoastalWatersandVictoriasMPASystem
TheVictoriancoastlineisapproximately2,000kilometrelongandiscomposedof
aspectacularmixofcliffs,bluffs,sanddunesandembayments.[69,7071,72,73].
TheVictorianStateGovernmenthasjurisdictionoverthecoastalwatersoffthe
VictoriancoastlineouttothreenauticalmilesundertheAustralianOffshoreConstitutionalSettlement(OCS,[74]),althoughthereismutualmanagementwiththeFederalAustralianGovernmentofsomefisheriesandsomeoilandgasexplorationoperationsinshoreofthislimit.HenceintermsofmarinewaterstheVictorianGovernmenthascontrolofapproximately8,000squarekilometresofsea[75].
Withinthesecooltemperatewatersthetidesarediurnalandthepredominantly
southfacingcoastlineissubjectinthewestofthestatetopredominantlysouthwestswellsandintheeasternportionstosoutheasternswells.Thecombinationofthetides,swell,strongwinds,mainlyfromthesouthandwest,andthenarrowandshallowBassStraitmeansthewaterscanbeveryrough.WhenthedifferinginfluencesoftheEasternAustralianCurrent(bringingwarmerwatersalongtheeasternsideofthestate)andthecoolerwatersonthewestcoastarecombinedtheresultisadistinctivemixofhabitats
leadingtoaverysignificantlevelofendemismamongstplantsandanimals,inmanytaxaatalevelover70%.
TheInterimMarineandCoastalRegionalisationforAustraliaTechnicalGroup
[76]identifiedfivedistinctbioregionsinVictoriasummarisedbytwoauthors[77and78]withmoredetaileddescriptionsreportedbyothers[79,80and81].ThereforeVictorianCoastalWatersareessentiallycooltemperateincharacterwithsignificantlocalvariation
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arisingfromaninteractionofsubstratetype,exposuretowindsandtides,andwatertemperature.
ThenextsectionwilldescribethedevelopmentofVictoriasMPAsystemin
detailbutin1992,priortothecommencementofthemajorstudyintendedtoexpandVictoriasMPAsystemVictoriapossessed12MPAscoveringatotalofapproximately50,000ha.,withallbutafewhectaresinmultipleuseMPAswherefishing,exploration,mininganddischargesfromlandwerestillpermitted[82].TraillandPorter[83]reportedthatin2001therewere11MPAS(consolidationofMPAshaddecreasedthereoverallnumber)coveringatotalof53,501haorapproximately4.5%ofVictoriancoastalwaters(VCW).Only600haor0.05%ofVCWwasinhighlyprotectedMPAsspreadacrossfiveMPAs.Therehavebeenfewstudiesontheuseofthesereserves(eg.[84,85,86])althoughvariousdraftandfinalmanagementplansgivesomebackgroundinformati
on(eg.[87,88,89])
3.0TheDevelopmentofMarineProtectedAreasinVictoriaTable1summarisesthemajoreventsleadingtothedeclarationofVictoriascomprehensive,adequateandrepresentative(CAR)systemofhighlyprotectedMPAsinNovember2002(amoredetailedtableisavailablefromtheauthor)
InsertTable1here.
Whilstnotproceedingwithadetaileddescriptionofeachoftheseeventsitispossibletoidentify,andbrieflycommentonfourdistinctphasesinthissequenceofevents.
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3.1PriortothefirstGovernmentCommitmenttoanMPAsystem(pre-1982)
PriortotheCainLaborGovernmentbeingelectedin1982withacommitmenttotheestablishmentofanMPAsystemoneMPA(theHaroldHoltMarineReserveattheheadsofPortPhillipBay)hadbeendeclaredin1978[114,115].InthisregardtheVictoriandevelopmentofMPAswassimilarupuntilto1982tootherjurisdictionsi.e.aspecificMPAwasproposedandfoughtforagainstthecombinedoppositionofstatewidefishingandotherinterestgroups.InVictoriathegroupspromotingMPAsweretheAustralianMarineScienceAssociation(AMSA)andtheVictorianNationalParksAssociation(VNPA).Afterthisearlydeclarationtherewasnotevenasecondsiteunderactiveconsiderationforfourmoreyears.
3.2.:ThefitsandstartsPhase(1982to1991)
AfterthecommitmenttoaMPAsystembythenewlyelectedGovernmentin
1982theGovernmentspublicland(andsea)useadvisorybody,theLandConservationCouncil(LCC,laterre-namedtheEnvironmentConservationCouncil,ECC)hastilyinsertedinitsfirstsetofDraftRecommendationsareferencetoconsiderationofthedeclarationofMarineProtectedAreasinitsfinalrecommendationsfortheareaofSouthGippslandincludingthewatersoftheiconicWilsonsPromontoryNationalPark(firstdeclaredasanationalparkin1898).
ThesubsequentfinalrecommendationsofseveralMPAsonlysixmonthslater(late1982)shockedthelocalcommunityandstartedtheimplementationofthe
GovernmentsMPApolicyoffinahaphazardandcontroversialmannerwhichprobably
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workedagainstthelongtermsuccessofthepolicyoverall.ItwasfiveyearsbetweenthedeclarationofHaroldHoltMPA(1978)andtheSouthGippslandMPAs(1983).
ThestrengthoflocaloppositionledagaintoalongdelaybeforethenextproposedMPAwasforthcomingi.e.fiveyearsuntiltheBunurongMPAinthelate1980s.ThisdelayanduncertaintymayhavebeenavoidediftheGovernmenthadinstructedtheLCCtocarryoutamarineandcoastalinvestigationcoveringthewholecoastalareainsteadofcontinuingtolookatMPAsonlywhentheLCCsscheduleofgoingfromlandregiontolandregionhappenedtotakeinacoastalarea.
FinallyaftertheauthorhaddocumentedthenumerouspromisesoftheGovernmenttoinitiateafullLCCstudytheGovernment,justpriortobeingdefeatedinanelection,finallyinstructedtheLCCtocommencethestudyin1991.
3.3.:TheLandConservationCouncilsMarineandCoastalStudy(1992to2000)
Bythe1991initiationoftheLCCstudyitwasfiveyearssincethelastMPAhadbeendeclaredinVictoria.AsitturnedoutitwasgoingtobeelevenyearsbeforethenextMPAwasdeclared.TheLCCmanagedtoproduceadescriptivereportofthemarineandcoastalareasofVictoriarelativelyquickly[116]butacombinationofconsiderableoppositiontoanyMPAs,alackofinterestshownbymembersofthegeneralpublic(asdistinctfromthespecificsectoralinterests)andalackofdetailedknowledge
ofthemarineenvironmentresultedinaprolongedperiodbetweendescriptivereportsandrecommendationsandconsiderablecontroversyovertheperformanceoftheLCCitself.SomuchcontroversyinfactthatitisbelievedthatonesetofmarinerecommendationswereactuallyshreddedjustpriortotheLCCbeingsuddenlydisbandedandreplacedby
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theEnvironmentConservationCouncil(ECC)in1997.TheECCthenhadtore-createthemomentumanddidproduceitsrecommendationsinacomparativeshortperiodoftimeproducingitsfinalrecommendationsinlate2000.
3.4.:TheRealisationofaComprehensive,AdequateandRepresentativeMPAsystem(2000to2002).
Thefinalphasewaspurelypolitical.Theindependentbody(LCC/ECC)hadproduced
itsrecommendationsafterconsiderablepublicconsultationandnowitwasuptotheGovernmenttoaccept,rejectormodifythoserecommendations.AsTable1showstheGovernment(whichwasaminorityGovernmentofthesamepartythathadcommencedtheMPAsaga20yearsearlier)neededthesupportofindependentsinthelowerhouseof
parliamenttopasstheMPAlegislation.TheGovernmentattemptedtointroduceamodifiedversionoftherecommendationsdeletingonenationalparkandonemarinesanctuaryinanattempttopacifytheoppositionofspecificrecreationandcommercialfishinggroups.AfteraccusationsofmanipulatingtheLCC/ECCrecommendationsandpanderingtopressuregroupstheGovernmentwithdrewthelegislationinmid2001whenitrealisedneithertheindependentsnortheoppositionwouldsupportthelegislation.
Duetoaseriesofimportantactionsdiscussedinmoredetailsbelowthelegisla
tion
wasre-introducedayearlater(withthedeletednationalparkandsanctuaryre-instatedandasubstantialcompensationpackageforpeopleadverselyaffectedbythedeclarationsadded)andthelegislationwaspassedwiththesupportoftheindependentsandthemajorOppositionpartyinmid2002,givingVictoriaitscurrentMPAsystem.
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4.0MatterswhichinfluencedthesuccessfulestablishmentofVictoriasComprehensive,AdequateandRepresentativeHighlyProtectedMPAsystem
Table1highlightsanumberofthemes,orfactors,thatinfluencedthefinaloutcomeofaCARsystemofno-takeMPAsinVictoria.Thesethemesaregroupedanddiscussedbelowunderaseriesofheadingsstartingwiththestakeholdersinvolvedinthelongdrawnoutdebate,followedbythekeyissuesthatweredebatedandfinallywithelementsofthedecision-makingprocesswhichseemeddecisiveintheeventualsuccessfulachievementofthesuiteofMPAs.
4.1TheStakeholders.
Thevariousstakeholdersgroups,startingwiththeNon-GovernmentOrganisations(NGOs)canbeassembledaccordingtowhethertheywereinfavouroropposedtoaCARsystemofno-takereserves.
TheConservationGroups.
AkeyelementofsuccesswasthepresenceofaNGOwithalong-termcommitmenttoMPAsandtheresourcestomaintainthatcommitment.
IntheVictoriancasetheVictorianNationalParksAssociation(VNPA)performedthisrole,laterjoinedbytheMarineandCoastalCommunityNetwork(MCCN)from1993.TheVNPAssupportforMPAsneverwaveredover25yearsandthiswascriticallyimportantasothergroupsandindividualscameandwent.ThisallowedcontinuityofknowledgeandculturalmemorysothatwhenanewphasewasenteredtheVNPAcouldusetheaccumulatedexperienceandknowledgeofthepast.TheVNPAandMCCN
weresupportedintheireffortsthroughoutthe1990sbythetwokeynationalbodiesthe
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AustralianConservationFoundation(ACF)andtheAustralianMarineConservationSociety(AMCS),althoughtheseorganisationscommitmentswaxedandwanedaccordingtothepersonnelinvolvedataparticularstage.
Akeyelementofthepro-MPAcampaignwasthesupportoflocalgroupsalongthecoastlineinregionalareas.ThesegroupswithlocalknowledgecomplimentedthestategroupsoverallvisionandwereimportantincounteringanyviewthatitwasaMelbourne(capitalcity)urbandrivenproposalimposingbigcityviewsonregionalcommunities.
TheMajorOpponentsofMPAs.
LinedupincontinuousoppositiontoboththeCARsystemandtoanyindividualproposalwere,inparticular,thepeakStatebodiesrepresentingcommercialandrecreationalfishers.LocalfishinggroupswereopposedtolocalMPAproposalsandtheiroppositionfromthebeginningtotheendofthedebatewascompletelyfixedand
immovablesastheyperceivedthattheirfavouritefishingspotswerethreatened.
AfeatureoftheMPAdebatewastherigidityofthestanceofthesetwosetsoffishingNGOsthroughtothemid1990swhenthepeakstatefishingbodiesbegantoshowsignsofgreaterflexibility,possiblyastheyrealisedthatsomeformofaMPAsystemwasinevitableundereitherofthemajorpoliticalparties.
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NeutralGroups.
Othersectoralinterestseg.Touristoperators,divegroupsetc.werefairlyneutral(evendisinterested)inthedebateuntilinthelate1990swhentheywereactivelycourtedbybothsidesofthedebate.BytheendstagesthesegroupsbecamemildsupportersoftheCARsystemandthiswinningoverofneutralgroupswasatellingfactorinfinalpoliticalacceptanceofthesystem.
PoliticalParties:GovernmentsandOppositions.
Acrucialelementofthedebatewasthesupport,intheend,ofboththemajorpoliticalparties(LaborandLiberal)fortheCARno-take"system.Thethirdpartyrepresentedintheparliamenttheultraconservativefarmerbasedparty(Nationals)wasopposedthroughout.ThecrosspartypoliticalsupportwascrucialintheendandwassparkedbytheextraordinarylettertoTheAgenewspaperinfavouroftheMPAs,
authoredbyanex-Liberalandex-LaborPremier(leader)inApril2002.
AswellthePremiertheheadoftheStateGovernment)andtheMinisterwereactivechampionsoftheCARproposalinitsfinalstageswhichgaveconsiderableweighttotheconcept.Finallybothpoliticalpartiesclearlywantedclosureonthisissueby2002ithadgoneonfartoolongandwasbeginningtocrowdoutotherpolicies.
BureaucratsandGovernmentAgencies.
Keybureaucrats(eg.Headsofsections)particularlyintheStateEnvironmentDepartmentsupportedtheCARproposalsthroughoutandwereinfluentialinmaintaining
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themomentumbehindthedebate.Thissupportthoughwasnotconfinedtoparkandconservationagenciesbutcoveredotherdisciplinesandaidedthecampaign.
TheroleoftheVictorianCoastalCouncil(VCC),thepeakcoastalagencyinVictoria,inactivelypromotingtheCARsystemindraftsofthestatutoryVictorianCoastalStrategyandthenfinallyinorganisingtheMPAbreakfastofkeydecisionmakersinMelbournelentastrongcredibilitytotheCARproposal.Herewasanindependentagency,thegovernmentsleadcoastalagency,publiclydeclaringthataCARsystemofMPAswasacriticalelementofsustainableuseoftheVictoriancoast.
TheCumulativeWeightofStakeholderSupport.
Intheendthesynergisticaffectofsomanydiversestakeholderssupportingacommonsystemoveraprotractedperiodoftimewasaverystronginfluenceonsuccess.AnindicatorofthisistoanalysetherecipientsoftheawardsmadebyParksVi
ctoriainMarch2003tothosewhocontributedtothesuccessfulCARoutcome.Therewere27awardsgivento12individualsand15groups/organisationsrangingfromlocalgroups,state-wideconservationgroups,governmentagencies,membersofparliamentandscientists.Thesheernumberanddiversityofindividualsandgroupsinvolvedfinallywonsuccess.
4.2.TheKeyIssuesintheDebate.
Therewereanumberofissuesdebatedthatwerecrucialtothesuccessofthe
campaign.
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TheRoleofScienceinthePublicDebate
Sciencewasusedasatooltodiscusskeymatterssuchastheneed(orotherwise)forMPAs,whetherMPAswouldmeetthebiodiversityobjectivessetandwheretoplacetheactualMPAsintermsofhabitatsandotherfeatures.
TheRoleofExperts.
DuringthedebateaseriesofinternationalscientistsandexpertsweresponsoredtovisitVictoriainsupportofMPAs,mostnotablyDrSylviaEarle(USA),Prof.DavidBellamy(UK)andDrBillBallantine(NewZealand).ThesepeoplebriefedCabinetMinistersandalsoaddressedpublicmeetings,smallgatheringsandreceivedconsiderablemediacoverage.ThisseemedtosetaglobalcontexttothedebateandplacedtheVictorianproposalsrelativetooverseasdevelopments.TheStatepoliticiansinparticular
weretakenbythenotionthattheCARproposalwasunusualifnotunique.
(seealsotheroleofchampionsundersection4.3)
TheStatedRole/ObjectivesofaMPAsystem.
AsthedebateprogresseddiscussionsoftheobjectivesofaCARMPAsystemcametotheforefront.Theconservationgroupsandsupporterssawtheprimaryrolewasofbiodiversityconservationwhilstsomeoftheopponentsofano-takeMPAsystemsawMPAsassolelyanotherfisheriesmanagementtool.Thisissueconfusedthe
discussionofno-takeversemultipleuseMPAs.Thegroupswhobelievedthesole,ormainrole,fordeclaringMPAswastoenhancefisheriescouldnotseetheneedforno-takeMPAswhilstthosearguingforaprimaryobjectiveofbiodiversityconservation
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couldnotseethevalueofmultipleuseMPAs.HencethedebatewaspolarisedalongsectorallinesevenaftertherewasgeneralacknowledgmentoftheneedforMPAs.
FinallytheroleinAustraliaoftheGreatBarrierReefMarinePark(GBRMP)andtheGBRMPAuthority(GBRMPA)needsabriefairing.TheGBRMPhasbeenpromoted(globally)asthequintessentialMPA.YetinrealitythegreaterMarineParkprohibitsnothingbutoilandgasexplorationandismoreazoningschemethana"conservationpark.ForexampleuntilJuly2004lessthan5%oftheentiremassiveGBRMPwasno-take.EarlyintheVictoriandebatetheGBRMPplayedanegativeroleforproponentsofMPAsinVictoria.FishersandothersillinformedabouttherealityoftheGBRMPfearedthewholestatescoastalwaterswouldbecomeaMarinePark(notrealisingthiswouldhaveverylittleimpactonthem)andusedthesheersizeoftheGBRMPasanargument(orscare-tactic)againsttheVictorianproposals.AswelltheGBRMPAspromotionof
MPAwasfocussedoverseasandtheAuthoritydidnotlendanyassistancetoVictoriansarguingforaMPAsystem.ButaverypositiveroleoftheGBRMPwasthatitencouragedinterstaterivalryamajormotivatorofStateGovernmentsinAustralia.VictorianproponentsofaCARMPAsystemcouldpointoutthesizeoftheGBRMPinQueenslandandthe5%no-takeareaandsayVictorianeededtomatchthis.Thishadapositiveinfluenceonthefinaloutcome.(AsanasideinterestinglyenoughshortlyafterVictoriadeclaredagreaterproportionofitscoastalwatersasno-takethaninthe
GBRMP;theGBRMP,after20yearsofnochange,movedtoincreaseitsno-takeareatoover30%!)
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TheRoleofValuableFisheries.
ThemajorgeneratorsofactualdollarsintheVictorianfisheryisabaloneandrocklobsterratherthanfin-fishproduction.Theselessmobilespecieshencebecamecrucialtothedebateintermsoflossofharvestingareaandcompensationthatmaybepaid,aswellastheriskofoverexploitingthesespecies.OncethedecisionmakingbodieswereabletodefinetheMPAboundariestominimiseimpactonthesefinanciallyimportantfisheriesaconsiderableamountofoppositionwasdissipated.
FlexibilityandRigidityinNegotiatingPositions.
Theearlyyearsofthedebatewerehighlightedbytherigidityofthepositionsadoptedbyopposingparties:largeno-takeparksversenoMPAsatall.
Inthelatterperiod(particularlythelastfiveyears)groupswhichhadheldrigidinflexiblepositionsslowlylosttheirnegotiatingpowers(withoneexception,seebelow)
tothosewillingtocompromise.Someofthecompromisesmadeincludedconservationists/politiciansrespondingtotheconcernthatordinaryrecreationalfisherswouldloseoutbylosingtheirfavouritefishinglocations.TheGovernmentrespondedbyexcludingallpiersandjettiesfromno-takeMPAsinthelastyearofthedebate.TheargumentthattheMPAswouldbepaperparksonlyandsubjecttolargescalepoachinggarneredtheGovernmentresponsethatincreasedtheenforcementaspectsofthefinalpackage.TheargumentthatthatMPAswouldresultinlossofcommercialfishersincomereceivedtheresponsethatthecompensationpackagewouldbeincreased.
Theonehard-linegroupwhichremainedrigid,andwassuccessfulinminimisingthesizeoftheCornerInletMarineNationalPark,werethecommercialfishersofCornerInletwhohadopposedtheoriginalmultipleuseMPAsinSouthGippslandfrom1982.
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Theirvictoryislikelytobeapyrrhiconeasover-fishingandpollutionhasdecreasedthecatchoverthelast20yearsandthelackofaviableMPAintheareaislikelytoworsenthisposition.
TheImportanceofStrongExistingInstitutionalArrangementsandCulturalFeaturesinResolvingConflict.
Victoriansbeachcultureandloveofthecoast[117]whichisreflectedintheretentioninpublicownershipofover90%oftheVictoriancoastline(bylegislationin1878)meantthatthecommunitywasalwaysgoingtobepartialtoconservationmeasuresonthecoast.
ThestronginstitutionalarrangementsforprotectingthecoastandcoastalwatersinVictoriaeg.Aleadagency,theVictorianCoastalCouncil,aCoastalManagementAct
1995,astatutoryVictorianCoastalStrategyandover60%ofcoastallandundertheNationalParksAct[118,119]meantthatanyMPAsystemwouldsitinastronginstitutionalbase.
Theindependentbody(theLandConservationCouncillaterEnvironmentConservationCouncil)thatranthepublicconsultationprocessandmadethefinalrecommendationsofaCARsystemtotheStateGovernmenthada30yearhistoryofresolvingpublicresourceallocationissuesinVictoria.Itsintegrityandindependencewaswellestablished.ArguingagainstMPAsonthebasisthattheconsultationproces
s(whichwasinstitutionalisedafter30yearsofLCC/ECCpractice)wasinadequateintheendprovedcounterproductive.Thehistoricaldatasaidtheopposite.
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Persistence.
Thelongtermnatureofthedebatemeantthatpersistence,byindividualsandgroups,wascriticaltosuccess.Intheendittook20yearsfromthetimetherewasapoliticalcommitmentbyamajorpartytoaMPAsystemuntilitwasrealised.IttooktenofthoseyearsjusttogettheGovernmentwhomadethecommitmenttoacomprehensivemarineandcoastalstudytocommencethestudy!Itisimpossibletounderestimatetherolethatthisdoggedpersistenceinthefaceofsetbacksplayedinultimatesuccess.
4.3CriticalElementsassociatedwiththeDecision-makingProcess.
General
TheLCC/ECCpublicconsultationprocesshadbeenusedonmorethantwenty
occasionsinthepastsotheprocessitselfwasrelativerobust.TheLCC/ECCsrecommendationshadbeenlargelyacceptedbyGovernmentsovera30yearperiodaswell.TheMarineandCoastalStudyconsultationprocesshadsurvivedtwochangesofGovernment-hencethreeGovernments-andhencetheGovernmentandOppositionhadownershipoftheprocessandwereconfidentofthegeneralcommunitys(asdistinctfromtheactiveparticipantsinthedebate)confidenceintheprocessandweredutyboundtorespecttheECCsrecommendations.Thecommunityalsohadanexpectationthat10yearswiththeLCC/ECCprocesswouldproducearesult.AlloftheserealitiesmeantthattherecommendedsystemofMPAshadastrongchanceofbeing
implemented.
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TheLobbyingCampaignofConservationNGOs.
Thisitemwasalsodiscussedunderstakeholders(above)butsomeofthetechniquesadoptedbyproponentswere:regularmeetingstoupdatepoliticiansandthemediaonprogress,theuseoflocalaswellasStatewidegroupsinlobbyinglocalpoliticiansaswellasMinistersandoppositionspokespeoplerespectively,telephonecallsfromlocalconstituentstotheirlocalmembersofparliamentacrosstheStateandtheuseofemailcampaignstopoliticiansatatimewhenthismethodhadbeenlittleusedinthepast.
Themedia-savvyofkeyindividualswascrucialforsuccessofthecampaignbyproponents.InparticulartheworkofTimAllenoftheMCCNandChrisSmythoftheVNPA,bothindividualswithalonghistoryinnetworking,campaigningandadvocacyworkwiththemedia,andincultivatingkeymediaoutletsandreporters,wascrucialtothefinalsuccess.
TheUseofChampionsbytheProponents:
ProponentsdevelopedarangeofindividualsandgroupstochampiontheproposedCARMPAsystem.Theserangedfrominternationalexperts(seeabove)tokeyscientistsandacademicsinVictoriaandsignificantbureaucratsandagencies.ThismeantthatthemessagethepublicreceivedaboutMPAscamefromdifferentpeoplefromdifferentbackgroundsandhenceraisedtheprobabilityofthecommunityhearingthe
messagefromsomeonetheyadmiredortrusted.Thetermtrustedmessengerswasusedtodescribetheseindividuals.
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ACommunicationandEducationStrategyruninParalleltothePoliticalcampaign.
Akeyelementoftheproponentscampaign,particularfromtheMarineandCoastalCommunityNetworkpointofviewwastobackuptheactualcampaignforaCARMPAsystemwithamoregeneralconsciousness-raisingeducationprogram.Thiseducationalprogramdidnotcarryadvocacymessagesbutratherraisedpeoplesawarenessofthebeauty,splendouranduniquenessofthesoutherntemperatemarineenvironmentofVictoria.Therewereasuiteofcolourmarinepostersproducedonoffshorehabitatswithfamiliarnamesintertwinedeg.KelpForests,SpongeGardens,SeagrassMeadows(authorsemphasis)andaseriesofpostersonlocalhabitatsandcharismaticfauna(eg.SeaDragons,Seals,Dolphins,BlueWhales)publishedintheSundaynewspapers.NationaliconsinVictoriawereexploitedeg.theGreatOceanRoad(ascenichighwayalongthecoastline),theTwelveApostles(amagnificentseriesof
limestonestacksoffthesouthwestcoast)aswell.
Focusgroupswereusedtoguidethedevelopmentofthesemediamessages,packagesandtheterminologyusedinthediscussions.Forexampletheuseofthetermno-takeinsteadofhighlyprotectedMPAs,theuseofnationalparkforlargeMPAsandtheditchingofpainfulandunhelpfuldiscussiononthedifferencesbetweenmarinereserves,marineparks,MPAs,marinesanctuaries,fisheriesreservesetc.
Theaddedbenefitofthisapproachwasitalsoraisedthecommunityscapacitytounderstandandplanandmanagethesemarineandcoastalareasinthefuture(onereason
fortheengagementandadoptionofMPAsbycoastalagenciesaswell).
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CrashThroughorCrashApproach.
FromthebeginningofthedebateonMPAsin1982toitsendin2002theconservationists(individualsandgroups)steadfastlymaintainedthattheCARsystemhadtobeofno-takereservesforreasonsofmarinebiodiversityconservation.ItwouldhavebeenaneasypathtotaketocompromisetoamultipleusesystemandthiswastheroutetheGovernmentinitiallytookinthelate1980sinSouthGippslandandtheearlyrecommendationsoftheLCCintheearly1990s.Butevenwhenthelegislationtoestablishthesystemwaswithdrawnin2001proponentsdidnotlessentheircommitmenttothefullCARno-takesystem.Theoutcomejustifiedthisstance.
SignificantBreak-Throughevents.
Therewereanumberofkeyeventswhichchangedthemomentumofthedebateatcriticaltimes.Themostsignificantofthesearedescribedbelow.
ThefinalshamingoftheLaborGovernmentin1991intoactuallystartingthestudywhichithadcommitteditselfpriortoelectionin1982(acomprehensivestudyofthecoastalwatersofVictoriainordertodevelopasystemofMPAs).Theauthorhadcompiledathreepagelistofover15separatestatementsorcommitments,bytheGovernmentoritsagencies,tocarryoutthestudybetween1982and1991andwidelycirculatedittopoliticians,themediaandinfluentialpeople.
AnotherwasthedecisionbytheVNPA,aftermarketresearch,tousethetermNationalParkinthecampaign.ThishadbeensuggestedearlierinaNationalParks
AdvisoryCouncilAnnualreportbuthadnotgainedanytraction.TheuseofMarineNationalParkasatitleforlargeno-takeMPAsseemedtostrikeachordwiththe
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generalcommunitywhoappreciatedandsupportednationalparksonland(VictoriaincreaseditsterrestrialNationalParks14foldbetween1970and1995,[120]).Thischangeinterminologyseemedtokickthecampaignonatastagewhensomemomentumhadbeenlost.
TheotherthreeeventsoccurredaftertheinitiallegislationhadbeenintroducedandthenwithdrawnfromParliamentinmid2001.ItwasquitepossiblethatthishugeblowtotheNGOscampaignsforaCARsystemofMPAscouldhaveendedthecampaign.Insteadtheeventshelpedregainthemomentum.
TheVNPAcalledade-briefing/counselling/post-mortemsessionofthepeoplewhohadbeenactiveinthecampaign(theauthorattended)shortlyaftertheparliamentarydebacle.Anindependentfacilitatortookparticipantsthroughaseriesofexercisesemphasisingthepositives(eg.increaseawarenessofmarineconservation)that
hadcomeoutofthecampaign.Thisre-vitaliseddemoralisedcampaignersandmostleftthesessioninare-invigoratedanddeterminedstateofmind,readytoresumethecampaignimmediately.
AsecondcriticalfactorwasthejointletterfromtwoformerPremiers,(elderstatesmen)ofthetwomajorparties,supportingtheMPAs.Thiscausedbothmajorpartiestore-considertheirpositionsandremovedpartisanpoliticalopportunismfromthedebate.Bothpartieswentontosupportthelegislation.
FinallytheVCCorganisedaninfluentialpeoplesbreakfast.Theinvitationlistwasofmajordecisionmakersfromindustry,unions,publicaffairsetcfromacrossVictoriaandwasheldintheprestigiousandhistoricMelbourneTownHall.Thevastmajorityof
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peopleinvitedhadnopriorknowledgeofMPAsandlittleknowledgeofVictoriasmarineenvironment.AknowledgeablepersonwasplacedateachtableandoverbreakfastpeoplewereentertainedwithfilmsoftheproposedmarineparksandthewondersoftheVictorianmarineenvironment.InternationalspeakersreinforcedthevalueofMPAsandeachguestreceivedaCDwiththemarineimagesondeparture.Theimpactofsuchaneventishardtomeasurebuttheresponseoftheguestswasinvariablyfavourableandpresumablytheyinformedtheirinfluentialcirclesofwhattheyhadwitnessed.Certainlytherewasanincreaseininterestfrompeoplenotpreviouslyinvolvedinthedebateintheweeksfollowingthebreakfast.
5.0LessonsfromtheVictorianExperienceforotherStatesandNationsattemptingtoenhancetheirMPAsSystems.SpecificlessonsacquiredfromtheVictorianexperiencehaveelementswhichwere
particulartoVictoriaandAustraliasjurisdictionalandculturalsystem.ButtherearealsolessonsofmoregeneralapplicabilityforothernationsandstatestotakefromVictoriasexperience.Belowtheselessonsaregroupedunderaseriesofheadings.
5.1.TacticsandStrategies.
Persistence
Dontgiveup.Thereclearlyisnosubstituteforpersistence.Over20yearsofeffortinVictoriayieldedanentireMPAsystemevenwhenallappearedlostafter19yearsofwork.
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CrashthroughorCrash
ThereareclearbenefitsforpursuinganallornonestrategyforcreatingaCARsystemofMPAs.OfthemanyattemptsmadeinVictoriatoobtainahighly-protectedMPAsystemitwasthemostcomprehensiveandmostambitiousthatprovedsuccessful,i.e.Onewhichwasforallno-takereservesandwasforanentiresuite,orsystem,ofMPAsinonedeclaration.
ThepreviousmodestattemptsatgainingoneMPAhereandalittlelateranotherMPAtheremeantthateachandeveryproposalwasweakened(eitherbyadecreaseinthedegreeofprotection,oradecreaseinarea)beforedeclaration.
Historicallytheareabyarea(incremental)approachmeantthattherewaslittlestate-widesupportforalocalisedproposalbutthatthoseopposedtoMPAdeclarationwereabletofocusalltheirstate-wideandlocalresourcestoopposeeachproposedMPAinturn,i.e.eachproposalwaspickedoffandweakened.Byproposinganentiresu
iteofMPAssimultaneouslystate-widesupportwasgarneredfortheMPAsbutoppositionnowhadtoworkagainstawholerangeofproposalssimultaneously.Thebetterorganisedstatebasedconservationorganisationwereabletocarryacentralcampaigndirecttotheparliament,politiciansanddecisionmakersbasedinthecapitalcity,Melbourne,whereover75%ofthestatepopulationslives.Converselytheanticampaignbecamefragmentedwhenconfrontedwith24battlefrontssimultaneously.
Alsotheargumentofthethinendofthewedgewasnotaseasytocarryina
CARsystemproposal.WhilstwhenasinglereservewasproposedinalocalareaopponentscouldarguethattheirfavouritefishingspotwastoberemovedandtheMPAwastocoversay1520%oftheirlocalareahencemakingscaretacticseasier-t
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wasimpossibletoarguethatareservesystemthatcovered5%ofthesate(andnopiers,jettiesorheavilyfrequentedbeachfishinglocations)leaving95%ofcoastalwatersavailableforfishingwasathreattotheexistenceofrecreationalandcommercialfishing.Afivepercentreservationcouldnotbeportrayedaslockingupthestateswaters.
KnowwhoyourTargetAudienceis.
AclearlessonfromtheVictorianexperienceistodistinguishclearlybetweentheclosedmindopponents,whowould,andwill,opposeMPAs(particularlyno-takeones)irrespectiveofanalysis(thatistherecalcitrantopponents)fromtheopen-mindedmembersofthegeneralcommunity.
TheVictorianexperiencesuggestsyouaimallmessagesattheopen-mindedgroup.Youcountertheobjectionsoftheclosedmindgroupinanopenandgenerousfashioni.e.youappealoverthisrecalcitrantgrouptotheopenandfairminded
membersofthegeneralcommunity.Appearinggenerousandconciliatory(willingtocompromiseanddiscussissues)willnotonlycounteractthenegativityoftheseopponentsbutwillportrayyouinthegeneralcommunitysmindasreasonableandcaring,evenaboutyourstridentopponents.
5.2.CommunicationsandEducation.
KISS:KeepItSimpleStupid
Oppositiongroupswereabletomuddythewatersbyarguingthatmaybeyoucouldhavenotakeareasifitwasprovedtheywerevaluableforenhancingfishingstocks.i.e.bycreatingconfusionoverthereasonsfordeclarationofnotakereserves.
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Theconservationgroupsandscientistsgroupsarguedthereasonforreservedeclarationwasalwaysbiodiversityconservation.
SowhilstsustainablefisheriesisonedesirableobjectiveforestablishingMPAsitiscertainlynottheonlyreasonandisusuallynoteventheprimaryreason.Whenreviewingthegreyliteratureassociatedwiththisissue(mainlypamphlets,newslettersetc.ofthevariousstakeholders)adetectableifnotquantifiabletrendwasapparent:themessageoftheadvocates(eg.VNPAandMCCN)becameshorter,sharperandsimplerasthecampaigncontinued.Inearlycallstosupporterstomakesubmissionsseveralpages(oftensomewhatrambling)wereused.Bythelaststages(2001/2)themessageswerecrispandprecise.
EducationinParallel,andIntegratedwithLobbying.
ActionswhichbroadenthesupportbaseforMPAestablishmentbeyondtraditionalsupporters(environmentalists)andacrossestablishedsetsectorandpartisanpoliticalboundariestoadiversecommunitybaseprovedveryeffective.
ThevalueofanyapproachwhichovercomesthepublicslackofknowledgeandunderstandingofthemarineenvironmentandtheroleofMPAs(eg.InVictoriatheuseofthewell-understoodandwellappreciatedtitlenationalpark)appearedtosubstantiallyincreasesupportfortheMPAsysteminthebroadercommunity.
InadditiontheimportanceoflayingdownoversometimeafoundationforaneventualMPAsystemshouldnotbeunderestimated.Thisfoundationisintermsoftheinformationbaseonthemarineenvironment,someactualMPAsandbuildingthecapacityofindividualsandgroupscapableofrefiningthecommunicationofadvantages
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ofanMPAsystemtopoliticiansandthegeneralcommunity.Itwouldappearunlikelythatwithoutthecapacitybuildingofindividualsandinstitutionsovertheperiodfrom1978throughtothelate1990sthatthesuddendeclarationofanentiresuiteofMPAswouldhavebeenpossible.
InVictoriaaconservationbattleovertheconservationofadesertareain1969-1970(121)wasthewatershedforaperiodofhugepublicsupportforparksandamassivedeclarationofterrestrialnationalparks(122)whichsawafourteenfoldincreasetothecurrentreservesystem(whichcoversnearly15%oftheStateslandarea).The2002marineparkdeclarationsmaywellheraldasimilarincreaseinmarineparksoverthenextquarterofacentury.
IdentifyandUseChampions.
IntheVictoriancasestudyaseriesofchampionsaroseovertime.Theserangedfromindividualswithinternationalstanding(notablyDrSylviaEarle,Prof.DavidBellamyandDrBillBallantine)throughorganisations(notablytheVictorianNationalParksAssociation,theMarineandCoastalCommunityNetworkandtheVictorianCoastalCouncil)toindividualswiththefinal(successful)campaign(mostnotablyTimAllenandChrisSmyth).
Theuseofinternationalexpertsandotherstoregisterindecision-makersmindsthesignificance(ininternationalandnationalterms)ofMPAsandofany
proposalforacomprehensiveandrepresentativesuiteofhighprotectionreserveswasadecisivecontributortosuccess.
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DirectlyAddressyourOpponentsConcernsandClaims.
Thecalls/criesof:Theywillonlybepaperparksanyway.Poachingwillnegateanygainsfromtheirdeclaration.arepredictable,butthatdoesnotmeantheyshouldbeignored.
Demonstrableenforcementproceduresarerequiredtoovercomeclaimsofpaperparks.InVictoriathiswasachievedbyincludinginthepackageofmeasures,attachedtothelegislationdeclaringtheMPAs,fundstoemploy20newFisheriesEnforcementOfficerstoassistinprotectionoftheMPAsaswellasfisheriesingeneral.Astherewaslittlechanceof20newofficersbeingemployedinfisherieswithouttheMPAsnotonlydidthisnegatethepaperparksargumentbutgaveoneoftheopponentgroupswhattheyhadbeenrequestingforyears,morefisheriesstaff.
OppositionistobeexpectedtonotakeMPAsduringconsultationi.e.expectafight.Butforopponents,negotiationissometimesabetterstrategythantotalopposition.
Takeadvantageofopponentsoverstatingtheircasebyrespondinginacalm,reasonableandrationalmanner.Victoriaslargestcirculatingnewspaper,theHeraldSun(partofNewsCorporation)askeditsreadersinapollinearly2002(betweenthewithdrawalandre-introductionoflegislation)thepushpollquestion:
ShouldtheBracks(Premier)GovernmentreviveitsplanstolockuplargesectionsofVictorianWatersfromfishingbycreating22marineparksandsanctuariesalongthecoastline?
Theresponsewas54%saidYes.ThismaywellhaveheraldedtheendofthecampaignagainsttheMPAestablishment.Byattemptingtogettheanswertheywantedfromthepublicbyuseofafactuallyincorrectandbiasedquestionthenewspapersenta
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longandstrongmessagetothegovernment.ItsaidYourdecisionwillbeoverwhelminglypopularwiththegeneralcommunity(interestinglyenoughtheagebreakdowntothequestionwasayesvotefrom71%ofunder25s,58.1%of26-34yearsand61.7%of35-44years.Clearlyolderpeople(over55)weretheonlygroupsopposedandonewonderswhethertheirobjectionmayhavebeenmoretochangeratherthantheactualissue).
5.3.TheCriticalImportanceofanIndependentAssessmentBody.
InstitutionalArrangementsinPlacefortheProcess.
TheexistenceinVictoriaofacredibleindependentbody(theLCCthenECC)toassessthecompetingclaimsofproponentsandopponentsofMPAswasasignificantcontributingfactortoeventualsuccess.
6.0Conclusion
ThethreekeyareaswhichresultedinsuccessinMPAdeclarationinVictoria,andwouldprobablyleadtosuccessinotherjurisdictions,wereastrategicandtacticalapproach,acleareducationandcommunicationsstrategyandaninstitutionalframeworkforclearindependentdecisionmaking.
VictoriasMPAadvocatespossessedpersistenceaboveallelseandappliedthelessonsofearlierfailuretoeachnewattemptataMPACARsystem.RatherthanbetemptedtowaterdowntheMPAproposalsovertimetheyactuallyincreasedtheirproposalswhichmeantthattherewasaclearinternalconstituencyforaskingfo
rano-takeCARsystembasedaroundMPAsusingthepubliclyrecognisedtermsnational
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parksandsanctuaries.Theyalsolearntovertimethatwhilsttheyneededtoaddresstheiropponentsconcerns,especiallytoGovernment,theirmessagewasbetteraimedattheopenmindedmemberofthecommunityratherthanpoliticiansandopponents.Thecampaignmessagewassimplifiedovertimetoasystemofno-takemarinenationalparksandsanctuaries,whichmadeiteasiertocommunicatetocitizens.ThevalueofrunninginparallelandinsupportofthepoliticalcampaignforMPAsamoregeneralnon-politicalawarenesscampaignonthevaluesandbeautyofthemarineenvironmentcannotbeunderestimated.ThisalsomeantthateveniftheMPAcampaignfailedatfirstsomelongtermvaluewasgained.
Partofthesuccessofboththecampaignmessageandtheeducationonewastheuseofchampions,expertsinthefieldthatcouldnotbeunderestimated.Allcountries(includingtheUSA)shouldconsidertheuseofexpertsfromoutsidethecountrywhoarehenceperceivedNOTtohaveavestedinterestinthelocaloutcome.
Finallyusinganexistingconsultationanddecisionmakingframeworkwasinvaluable.Againtheopenmindedcitizenwhomaydismissthepointsmadeforandagainstaproposalbylobbygroupswillappreciatetheimpartialumpiresdecision.
AlloftheselessonscanbeappliedinanyjurisdictionandiftheyareappliedjustmaybetheambitioustargetofaCARsystemofMPAsgloballywithinthenextdecadewillnotbeapipedream.
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7.0Acknowledgements.
InkeepingwiththetwentyyeartimespanofthispaperitisdifficulttosingleoutpeoplewhoassistedwithideasinthispaperbuttheauthorwishestoespeciallyacknowledgetheassistanceofTimAllenandChrisSmyth.TimOHaraandJoanPhillipswerealsosignificantcontributorsduringthewholeenterprise.
8.0References
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[47]McNeill,S.1994.Theselectionanddesignofmarineprotectedareas:Australiaasacasestudy.BiodiversityandConservation3:586-605.
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Managementin1992/1993.EnvironmentalandPlanningLawJournal10(2):87-96.
[71]Wescott,G.C.1998.ReformingCoastalManagementtoImproveCommunityParticipationandIntegrationinVictoria,Australia.CoastalManagement.26:315.
[72]LandConservationCouncil.1993.MarineandCoastalSpecialInvestigation.
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[79]Ferns,L.W.andHough,D.(Eds.)1999.EnvironmentalInventoryofVictoriasMarineEcosystems,Stage3,Volume1.Parks,FloraandFaunaDivision,DepartmentofNaturalResourcesandEnvironment,Melbourne.
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[91]Storey,H.1979.VictoriasMarineReserves:recommendationsarisingfroman
analysisofdiversresponse.MastersofLandscapeArchitecture,unpublishedthesis,UniversityofMelbourne.
[92]LandConservationCouncil(LCC).1982.FinalRecommendationsfortheSouthGippsland2Study.LCC.Melbourne.
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[93]McDonald,C.M.1982.AsystematicapproachtotheestablishmentofMarineandEstuarineProtectedAreasinVictoriancoastalwaters.FisheriesandWildlifePaperNo.30.MinistryforConservation.Melbourne.
[94]Nevill,J.1984.Thedeclineofshallowreeffauna.EnvironmentVictoria51:9-10.
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[98]Rosenbaum,1990.TheStatusofMarineConservationinVictoria.Parkwatch.Sept.:5-8.
[99]Malcolm,S.1990.SouthGippslandsMarineandCoastalParks.Parkwatch161:5-8.
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andhopesforthefuture.In:op.cit.44.
[103]Wescott,G.C.etal.,1994.RecommendationsoftheCoastal
ReferenceGroupontheEstablishmentoftheCoastandBayManagementCouncil.CoastalReferenceGroup,Melbourne.
[104]LCC.1995.MarineandCoastalSpecialinvestigation.ProposedRecommendations.
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[105]LCC.1996.MarineandCoastalSpecialInvestigation:DraftFinalrecommendations.GovernmentPrinter.Melbourne.
[106]VictorianCoastalCouncil.1997.VictorianCoastalStrategy.GovernmentofVictoria.Melbourne.
[107]EnvironmentConservationCouncil.(ECC),1998.Marine,CoastalandEstuarineInvestigation:interimreport.ECC,Victoria.
[108]op.cit.17
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[109]ECC.1999.Marine,CoastalandEstuarineInvestigation:draftreportforpubliccomment.ECC.Victoria.
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[111]op.cit.20
[112]op.cit.106.
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[119]Wescott.G.2004.TheTheoryandPracticeofCoastalAreaPlanning:LinkingStrategicPlanningtoLocalCommunities.CoastalManagement32:95-100
[120]Wescott,G.1995.Victoria'sNationalParkSystem:CantheTransitionfromQuantityofParkstoQualityofManagementbeSuccessful?AustralianJournalof
EnvironmentalManagement,2(4),pp.210-223.
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Table1:AChronologyoftheDevelopmentofVictoriasMarineProtectedAreas
1972.ScubaDiversFederationofVictoriaproposeamarinereserveforthesouthernareaofPortPhillipBay(PPB),onwhichMelbourneissituated
1978.AustralianMarineSciencesAssociation(AMSA,VictorianBranch)convenesaworkshoponestablishingMarineReservesinVictoria.Later:MarineReservesCommittee[90]ofStateGovernmentpresentsthecaseforaPPBMarineReserveandhenceTheHaroldHoltMarineReserves(Victoriasfirst)aredeclared(withonesmallno-takearea).
1979.Storey[91]reportsondiversattitudestoMPAsinVictoria.
May1982.CainLabor(progressive)GovernmentpromisestoestablishasystemofmarineparksalongVictoriascoastasafirststeptowardsconservationandrecreationmanagementofrelatedseaandlandenvironmentsofgreatvalueandbeauty.
June1982.InaProposedRecommendationsReport[92]theStatepubliclandadvisorybody(formedin1970)mentionspossibleestablishmentofMPAstobeconsideredinitsfinalrecommendationsreportontheSouthGippslandRegionofVictoria(150kmsoutheastofMelbourne).
November1982.LCCpublishesfinalrecommendationsfortheSouthGippslandareawhichincludesonemarinereserveandthreemarineandwildlifereserves.
30November1982.AsmallPointCookMarineReserve(inPPB)declaredunderFisheriesAct1968.
1982.MacDonald[93]proposesasystematicapproachtoVictorianMPAs.
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January1983.VictorianNationalParksAssociation(VNPA)publishesproposalsforaseriesofmarineparks(includingno-takeareas)fortheSouthGippslandarea.
Mid1983.SouthGippslandMarineCouncil(alooseaffiliationofunderwater,commercialandrecreationalfishinginterestgroups)isformedtoopposeMPAs
15November1983.AustralianConservationFoundation(ACF)callspublicmeetinginMelbourneinsupportofMPAs.Nevill[94]reportsonVictorianMPAproposals.
1June1986.SeriesofSouthGippslandMPAsdeclared(withlimitedno-takeareainonereserve).AbalonefisherstakeStateGovernmenttoSupremeCourtoverlossofabalonefishingrightsinno-takemarinereserveandeventuallywin,henceplacingalegalcloudoveractualcontrolofMPAs.ThiscontroversystallsMPAdevelopmentplansofGovernment.Wescott[95]comparesVNPAandLCCproposals.
Late1987.Victoriasforgottenmarinereserves[96]describedinanattempttoregaingovernmentalpolicymomentum.
December1987(ProposedNovember)BunurongMarinePark
andReservedeclaredwithsmallno-takecore,onSouthGippslandcoast.
Late1980s.Nogovernmentaction.VNPAformsMarineSubcommittee,carries
outaseriesofNationalEstatemarinestudies,slowbuildupinmarineinterestwithinconservationNonGovernmentOrganisations(NGOs).AuthorpublishesathreepagecompendiumofallthecommitmentsandpromisesmadebytheStateGovernmenttowardstheestablishmentofaLCCmarineandcoastalstudyandeventuallyaMPAsystem.Campbelletal[97]publishesdescriptionsofexistingmultipleuseMPAsfor
VNPAinanattempttore-kindlegovernmentinterest.AVictorianbasedMarineandCoastalSocietyisformed(MACS)Theoriginalmembers(academicsandpublic
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servants)believeanexclusivelymarineNGOisrequiredtopromoteMPAs.(laterMACSisincorporatedintoaVictorianBranchoftheAustralianMarineConservationSociety,AMCS).
1990.Rosenbaum[98]reportsonthestatusofMarineConservationinVictoriaandMalcolm[99]onthestatusoftheproblematicSouthGippslandmultipleuseMPAs,bothareworkingfortheVNPAonmarineissues.Clarke[100)]alsosummarisesprogress.
November1990.VictorianNationalParksAdvisoryCouncil(NPAC)proposes
methodologyforincreasingMPAsinVictoria,includingtheuseofthetermmarinenationalparks(AnnualReportfor1989/90,tabledinStateParliament)
September1991.LaborMinisterforEnvironmentinstructsLandConservation
Council,(LCC)tocommenceamarineandcoastalinvestigation.BeginsNovember.
Late1992.KennettCoalition(Conservative)Governmentelected.CainLabor
Governmentdefeated.NewGovernmenthasnospecificMPApolicybutastrongcommitmenttocoastalpolicyreform.
June1993.LCCDescriptivereport:MarineandCoastalInvestigationpublished
[101]withcallforpublicsubmissionsto29October(ProposeddateofFinalRecommendations30November1994,ultimatelyturnsouttobeAugust2000).Malcolm[102]summarisestheprogressofMPAdevelopmentinVictoriauptothecommencementoftheLCCstudy.
Late1993.MarineandCoastalCommunityNetwork(MCCN)establishedby
FederalGovernmenttoraiseawarenessofmarineandcoastalissuesandinparticularMPAs.VictorianStateCoordinator(TimAllen)appointed.MrAllenwillplayamajorroleintheestablishmentoftheMPAsystemoverthenext9years.
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January1994.DiscussionPaperonproposedchangestoVictoriancoastal
managementreleasedandaCoastalReferenceGroupisestablishedtoconsiderpublicsubmissionsandtoreporttotheConservationMinister.
Mid1994.CoastalReferenceGroup[103]reportstoMinisterrecommendingaCoastalManagementAct,aCoastalandMarineCouncilandaCoastalStrategy.
April1995.LCCProposedRecommendationspublished[104],twoyearsafteroriginalreport,withcallforpublicsubmissions,whichcloseon31August1995.ThereportzonedallVictoriancoastalwatersandsuggestedaseriesofverysmallhighlyprotectedSanctuaryZonesandaseriesofmultipleuse(includingalltypesoffishing)MarineParksacrossfivebioregions.
Easter1995.CoastalManagementAct1995passedbyVictorianParliament.
25May1995DrBillBallantine,aNewZealandexpertinMPAsvisitsVictoria.
Late1995.FirstVictorianCoastalCouncil(VCC,originallycalledCoastaland
BayManagementCouncil),establishedunderCoastalManagementAct1995.
June1996.LCCpublishes[105]itsDraftFinalRecommendations
(Submissionstoclose16August1996).Twentymultipleuse(includingfishingofalltypes)MarineParkscovering19%oftheStatescoastalwatersarerecommendedwith21verysmallhighlyprotectedSanctuaryZonesenclosedintheparks.Inthefourandonehalfmonthsubmissionperiod146submissionsandover20letterswerereceived.
14August1996.TheHeraldSunnewspaper(Victoriaslargestcirculationdaily
newspaper,aNewsCorporationqualitytabloid)reportsavisitbyDrBillBallantineinsupportofano-takeMPAinPortPhillipBay.
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Late1990s.VNPAhostsfocusgroupsonMPAsanddecidestousethetermmarinenationalparksintheircampaigns.
Early1997ParksVictoriaformedasaproviderofmanagementservicestothe
VictorianGovernmentandinparticulartomanagetheStatesnationalparksystem.
ImmediatelypriortoEaster1997.LCCfinalrecommendationsbelievedtobe
shreddedandLCCwoundupbyStateGovernmentwhichproposesareplacementalternativebody.
28April1997.ValerieTaylor,ahighprofilediverandexplorer/authorpublicly
supportstheestablishmentofaVictorianMPAsystem.
July1997.EnvironmentalConservationCouncil(ECC)isestablishedtoreplace
LCCandcontinues(startingSeptember)themarineandcoastalinvestigationspecificallytoidentifyareassuitableforaquacultureandareassuitableforMPAs.
SeptembertoNovember1997.SubmissionssoughtforECCrevisedstudy.
November1997.VictorianCoastalCouncil(VCC),andhencetheVictorian
Government,supportstheestablishmentofacomprehensivesuiteofMPAsinthefirstVictorianCoastalStrategy[106]
February1998.ECCpublishesitsInterimReport[107]onthemarineandcoastalinvestigation(fiveyearsaftertheLCCsfirstdescriptivereportand18monthsaftertheLCCsDraftFinalRecommendations)andpromisesafinalreportby30June1998.
SubmissionscalleduntilApril.Reportsthatatotalof164submissionsweremadeontheLCCDescriptiveReport,739submissionsonLCCProposedRecommendationsand1094onLCCDraftFinalRecommendations.
December1998.MinisterrequestsECCtoreviewoptionforPortPhillipHeads
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MarinePark,believedtobeduetopressurefromeconomicMinistriesabouttheparksproximitytoshippinglanes(reviewincorporatedintofinalreportinAugust2000)
1998through2001.TheUniqueSouthPosterSeriesproducedbyMCCNandEnvironmentAustraliafeaturingmarinehabitatsinsouthernAustralia.Over26,000aredistributedtoschoolsandcommunitygroups.
Early1999.Porter[108]completesthemostcomprehensivestudyyetofthedevelopmentandeffectivenessofMPAsintemperatewaters.
28May1999.MinistertablesinParliamentamendedTermsofReferencefor
ECCMarineandCoastalstudyextendingtimeforstudyto30June2000.ReportsthatInterimReportreceived226submissions.
October1999.KennettConservativeGovernmentdefeated.BracksLabor
(Progressive)Governmentelected,withapolicycommitmenttoaMPAComprehensive
AdequateandRepresentativesystem.ThisGovernmentthoughisaminoritygovernmenti.e.Itneedsthesupportofindependentmembersofparliamenttopasslegislation.
December1999.ECCpublishesDraftFinalReport[109],public
submissionsrequesteduntilMarch2000.Thisreportrecommends12highlyprotected(no-take)MarineNationalParksand11highlyprotectedMarineSanctuariescovering6.2%ofcoastalwaters.Reportsthatover2,000submissionsintotalhavebeenreceived
untilthisstageoftheprocess.
July&August2000.VictoriasUnderseaTreasures(MCCN)arepublishedinTheAgenewspaper.ThisisaseriesofcolourfullsizedpostersonfiveVictorianmarinehabitats.Totalof1.25milliondistributed
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August2000.ECCFinalReportforwardedtoMinister.
September2000.TheVictorianNationalParksAssociationemploysexperienced
coastalenvironmentcampaigner,MrChrisSmyth,toleadtheirMPAcampaign.
24October2000.GovernmentreleasesECCFinalReport[110]
recommending13MarineNationalParksand11Marinesanctuaries,4,500publicsubmissions(2,500aftertheDraftReportof1999)arereportedtohavebeenreceivedinsixformalsubmissionperiodsoverthenineyearperiodofthemarineandcoastalinvestigation-thelongestbyfarofanyLCC/ECCstudy
15January2001.Amajorarticle(HiddenTreasures)ispublishedinTheAge
(Victoriasqualitydailybroadsheetnewspaper)describingthebeautyandsplendourofthemarineenvironmentinVictoriancoastalwaters.
5-7February2001.DrBillBallantinevisitsVictoriainsupportofECCMPA
proposals.
March2001.VNPApublishesitsthirdNatureConservationReview[111],thefirsttohaveacomprehensivesectionontheneedforasuiteofMPAs,containingthemostextensivescientificreferencelistyetpublished(approx.180references).
14March2001.TheVictorianrecreationalfishingpeakbodywithdrawssupport
forno-takeMPAsinVictoria.
29March2001.OnehundredandfifteenleadingAustralianmarinescientists
undertheauspicesoftheAustralianMarineScienceAssociation(AMSA)produceaConsensusStatementsupportingtheestablishmentoftheECCrecommendedMPAsystem.
15May2001.StateGovernmentreleasesproposeddraftlegislationforMPA
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system.
17May2001.OppositionPartydescribesGovernmentsproposalsasacynical
andgrubbyexercise,suggestingthattherewillnotbebi-partisansupportfortheMPAproposal.
24May2001.FirstofaseriesofcolourGovernmentadvertisementspublicising
proposedMPAsystemappearsindailynewspapers.(on2August2001TheAgereportsthecostoftheseadvertisementswas$A163,000).
Mid2001:FirstMarineNationalParksBillintroducedintoParliamentwith12
NationalParksand10sanctuaries(ECChadrecommended13and11respectively).
26May2001.Majoranti-MPArallyheldbyopponentsoflegislationoutside
ParliamentHouseinMelbourne(approx.1,000peopleattendaccordingtotheHeraldSun,31May2001)
31May2001.TheAgeeditorialsupportsthecurrentproposedlegislationon
MPAs(supportedrepeated13June2001).
LateMay2001.Recreationalfishinggroups,commercialfishinggroupsandthe
SeafoodIndustryCouncilallpubliclyopposetheproposedlegislation.TheVNPA,AMSAandDiveIndustryAssociationallpubliclysupporttheproposedlegislation.
5June2001.TheminorityOppositionparty(theNationals)opposeno-take
marinenationalparksbutsupportsmallno-takemarinesanctuaries.
MidJune2001.MarineNationalParksBillwithdrawnbytheGovernmentfrom
ParliamentwhenitisclearthattheminorityGovernmenthasnotgotthenumberstopassitinitspresentform.
16June2001.AustralianConservationFoundation(ACF)Presidentlamentsthe
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withdrawaloftheMPAbillfromparliamentinOpinionPieceinTheAge.TheAgesummarisesthewithdrawalandwhatmighthappennext,butbelievesthere-introductionoftheBillisunlikely.
25June2001VNPAorganisesaneveningdebriefingsessiononthe
withdrawalofthelegislationforselected(approx.12-15people)MPAactivistsfromacrosstheState.
31July2001TheVCCannouncesinTheAgethatitwillattempttobring
togetherproponentsandopponentsofMPAstoworkoutacompromiseposition.
5August2001.AnACFmediareleasereportsthat70tourism,environmentand
educationgroupssupporttheMPAproposals.
6August2001.TheAgereportsthatmarineparkplansarebackonthe(political)
agenda
17August2001.TheAustralianDemocrats(Australiasfourthlargestpolitical
party,centreleftinfocus)supporttheoriginalECCMPAproposal.
16October2001.FormerLiberalPartyleader(Premier),SirRupertHamer,
writesanopinionpieceinTheAgeurgingsupportfortheoriginalECCMPAproposal.
16November2001.ValerieTaylorandDrSylviaEarlevisitVictoriaandsupport
theECCMPAproposals.
25January2002.GovernmentEnvironmentMinisterstatesthattheGovernment
willre-introduceintoparliamentthisyeartheMPAlegislation.
January2002.SecondrevisedVictorianCoastalStrategypublished[112]
stronglysupportingLCC/ECCstudyandproposedsuiteofMPAs.
4February2002.TheHeraldSunpublishesanambiguouspublicopinionpoll
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onMPAsinVictoria(seetextfordetails)
21February2002.TheAgereportsona25yearmarinestudyofVictorian
coastalwaters,collatedfortheMuseumofVictoriabyDr.TimOHara,whichrevealedover12,000speciesofplantsandanimals.
5-7March2002.ProfDavidBellamyandDrSylviaEarlevisitVictoriaand
speakpubliclyinsupportoftheMPAproposal.
6March2002.TheVictorianCoastalCouncilshostsaninfluentialpersonsbreakfasttoexplainthebeautyandsplendouroftheMPAproposal.
25,27March2002.TheAgecommentsthatcompensationofthefishingindustry
forlossofcatchisthekeytothesuccessofanynewMPAlegislation.
26March2002.GovernmentmediareleaseunveilsnewMPAproposalsindetail
whichareconsistentwithECCrecommendationsandincludeacompensationpackage
forthefishingindustryandenforcementprovisions.ImmediatelysupportedbyAMSA.
10April2002.NewMarineNationalParksBillintroducedintoparliamentwith
13nationalparksand11sanctuaries(asoriginallyproposedbyECCexceptboundariesvaryslightly).Governmentagainrunsmediaadvertisementsinsupportofproposal.
12April2002.BoatingIndustryAssociationattacksnewMPAproposals.
TheAgereportsthattheGovernmenthastoldtheOppositiontoputuporshutupi
.e.topassthelegislationortostateclearlyandpubliclywhyitopposesthelegislation.
16April2002.TheAgereportsthatattheVictorianCoastalConference,
sponsoredbytheVCC,the160delegateshavepassedamotionsupportingtheMPAlegislation
22April2002.TwoformerPremiers(Governmentleaders)fromtwoopposing
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politicalparties(JoanKirnerandSirRupertHamer)writealettertoTheAgecallingforbi-partisansupportforthenewMPAlegislationinalettertitled:MarineParks:apleafromtwograndparents
11May2002.TheAgereportsonameetingbetweentheGovernmentand
OppositionwhichagreestosupporttheMPAlegislationcombinedwithacompensationandenforcementpackage.
13June2002.MarineNationalParksBillpassedbyparliamentwiththesupport
oftheLiberalParty,themainoppositionparty.
16November2002.FirstoftheMarineNationalParksandMarineSanctuaries
aredeclared.Allareno-takethroughout.TheAgereportsthesuiteofMPAsasaworldfirstsystemofrepresentativemarinenationalparksandsanctuaries.
March2003.ParksVictoriaMPAawardscelebration.Awardsmadetopeople
whocontributedtotheachievementofMPAsinVictoria.Seetextfordetails.ParksVictoriaalsopublishesitstenyearstrategyforMPAplanningandmanagement[113]
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