5. Cultural Heritage Management
Aim: To protect and preserve the Park’s cultural heritage values.
Previous human activity in the Park has included visits by Cocos-Malay workers employed on the Clunies-Ross estate, and actions associated with the two World Wars. These activities have left various relics of value and interest.
Two graves, of a Malay woman and a girl, are located near the southern shore. They died from beri-beri, a dietary deficiency, in the late nineteenth century. There is also a grave of a man who died in an accident (Bunce 1988).
The Malay workers attempted to source water from underground and, utilising basic tools, dug several wells close to the lagoon edge. However these wells proved to be brackish and unfit for human consumption, and the water was used for cleaning purposes.
There is evidence of two base camp sites which were inhabited during coconut and wildlife collecting trips. One is among the vegetation situated within metres of the landing site and the second is at the western side of the lagoon edge where the railway ends. Wooden stumps that would have supported large huts are still in place. Scattered around them are old bottles, equipment and timber debris. One hut probably accommodated the Clunies-Ross family members and their guests, as workers tended to be based in makeshift shelters. The railway track that joined these base camps was a section of small gauge track that used a trolley cart; its east-west transverse assisted workers shifting bags of husked coconuts to the landing side. During the salvage operation of the SMS Emden, the railway track was extended as far south as possible to access the wreck site.
Occasional scuba diving trips are made to the Park, with one of the prime attractions being diving on the wreck of the First World War German raider, SMS Emden, on the reef off the southern end of the Island. As noted in Section 2.9 of this Management Plan the SMS Emden is a historic shipwreck under the Historic Shipwrecks Act 1976, and a protected zone has been declared around it under the Act.
A Second World War De Havilland Mosquito aircraft, A52-606, from 87 Squadron, failed to reach West Island airstrip and crash landed on the east coast of North Keeling Island in June 1945. The aircrew survived. A section of the engine is still visible at the crash site.
In the late 1980s, military personnel disposed of live Second World War ammunition found on the southern end of the western beach. Waves had eroded sections of the beach and exposed the ammunition, which had been previously undetected. Reports suggest that Japanese armed forces stored them together with submarine fuel. The fuel and some ammunition was found and destroyed some time after the Second World War.
5.1 The Director will comply with the heritage management provisions of the EPBC Act.
5.2 Heritage sites in the Park will be protected by setting appropriate conditions on permits authorising entry to the Park. [See Section 6.1].
5.3 Permits authorising entry to the Park for the purpose of carrying on activities within the protected zone declared around the wreck of the SMS Emden under the Historic Shipwrecks Act 1976 will be subject to the holding of any permit required for the activities under that Act. [See Sections 2.9 and 6.1].
5.4 Cultural and historical information will be included in community education and interpretive material.
5.5 The Cocos-Malay community will be consulted regarding the care of the Malay graves on North Keeling Island.
6. Visitor Management and Park Use
Aim: To protect and preserve the Park from adverse impacts of visitation, and ensure, as far as possible, a safe and enjoyable experience for all people visiting the Park.
North Keeling Island has not been settled due to its isolation, inaccessibility and a lack of fresh water. Nevertheless, historically people from the southern atoll have intermittently visited the island to collect coconuts and wildlife, and to salvage items from the shipwreck, SMS Emden.
Today the majority of visits to the island are by Parks Australia staff undertaking park management activities. Periodically, tourists guided by either permitted tour operators or Parks Australia staff also visit the island. Occasional interest in visiting the island has been shown by naturalist groups, particularly bird watchers, but availability of a suitable vessel and uncertain weather conditions make access difficult.
Visitors to the marine area undertake scuba, snorkeling and surfing activities in the company of permitted tour operators. Cocos residents are allowed to fish recreationally by trolling, but only with a valid permit. [See Section 4.3].
In recent years there have been a number of incidents of illegal hunting of seabirds on North Keeling Island by Cocos residents. Apprehended offenders have been prosecuted. Unrestricted visitor access could interfere with protection and preservation of the Park, and the safety of park visitors could be endangered.
Access onto North Keeling Island can be hazardous as it normally involves a swim, from a boat across the reef, to the shore. Waves generally break on the reef, adding to the difficulty of this exercise. All park staff and visitors to the island must therefore be competent swimmers in these conditions. Facilities to improve the ease of access to the island are not compatible with its strict nature reserve zoning.
Aircraft flying over the island disturb seabirds, especially during the breeding season. Nesting birds can abandon eggs or chicks and curious birds that take to the air may be injured by the turbulence created by passing aircraft. The En-Route Supplement Australia (ERSA) issued by Air Services Australia advises pilots to avoid overflying North Keeling Island because of a significant bird hazard.
There are no roads or established visible tracks on North Keeling Island because of the terrain and infrequency of use. There is a designated walking route taken from the landing area to the Park’s staff campsite, but this route changes frequently as a result of storm damage. Park staff and visitors also usually follow either the lagoon edge or the coastline. Thus in this Plan the walking locations are not referred to as ‘roads and tracks’.
Entry to the Park is prohibited under r.12.23 of the EPBC Regulations. Entry was prohibited by the Director under the National Parks and Wildlife Regulations in 1999, as required by the first Management Plan for the Park, to protect and preserve the Park and its natural resources, and ensure safe access to North Keeling Island. The prohibition continued in force under the EPBC Regulations following commencement of the EPBC Act on 16 July 2000. In October 2002 that prohibition was replaced by a new prohibition under r.12.23 of the EPBC Regulations
(Appendix 7).
Entry to the Park must be authorised by a management plan in operation for the Park, or a permit issued by the Director (unless one of the other exceptions prescribed by r.12.06 of the EPBC Regulations applies).
As noted in Section 2.9 of this Management Plan, the SMS Emden is an historic shipwreck under the Historic Shipwrecks Act 1976 and a protected zone has been declared around it under the Act.
Section 354(1) of the EPBC Act prohibits certain actions being taken in the Park except in accordance with a management plan.
The EPBC Regulations include other provisions that prohibit or regulate visitor and recreation activities in the Park, including:
- r.12.14 – dumping of waste, littering etc;
- r.12.15 – possession and use of firearms, spears and other devices;
- r.12.27 – public nuisance;
- r.12.30 – lighting and use of fires;
- r.12.31 – public gatherings in excess of 15 persons;
- r.12.35 – recreational fishing [see Section 4.3 above];
- r.12.55 – walking on roads and designated tracks; and
- r.12.56 – use of vessels.
During the life of the first Management Plan for the Park, four strategies were developed to guide the Director in managing visitor access and use under the Plan, and to inform the public. Permit conditions require observance of the strategies. The strategies dealt with visitor access, boating, recreational fishing, and scuba diving.
6.1.1 Subject to these prescriptions, entry to the Park by the public will be limited to persons:
(ii) authorised by a permit issued by the Director under the EPBC Regulations, including permits issued for the purposes of carrying on research [see Section 4.4] and commercial activities [see Section 6.2]; or
(iii) carrying on or taking part in authorised commercial tour activities [see Section 6.2].
6.1.2 Entry to North Keeling Island will not be permitted for purposes other than observation, study and quiet enjoyment of the island’s natural and cultural resources.
6.1.3 Persons landing on North Keeling Island will be required to walk only on the beaches and designated access routes.
6.1.4 The conditions of permits authorising entry to North Keeling Island may include additional restrictions on entering particular parts of the island in order to protect its natural and cultural resources.
6.1.5 Camping will not be allowed on North Keeling Island, other than by Park staff and their consultants and contractors, in the course of management duties.
6.1.6 No buildings or other structures for visitor use will be erected in the Park.
6.1.7 Subject to prescription 6.1.8, entry to the Park for the purposes of scuba diving, snorkeling and surfing will only be permitted for persons taking part in an authorised commercial tour, or snorkeling and diving for permitted research.
6.1.8 Permits authorising entry to the Park for the purposes of scuba diving, snorkeling and surfing may be issued to the Cocos Dive Club and Cocos Board Riders Club for members of these clubs, during the life of this Plan if the Director is satisfied that issues of supervision, safety and public liability are adequately addressed.
6.1.9 Permits authorising entry to the Park for the purpose of carrying on activities within the protected zone declared around the wreck of the SMS Emden under the Historic Shipwrecks Act 1976 will be subject to the holding of any permit required for the activities under that Act. [See Section 2.9].
6.1.10 Permits will not be issued authorising entry to the Park for the purpose of carrying on water-skiing or jet-skiing, or other activities not provided for by this Management Plan and that the Director considers to be inappropriate having regard to the IUCN category of the Park and the relevant zone of the Park.
6.1.11 Entry to the Park for the purposes of recreational fishing may be permitted in accordance with the prescriptions in Section 4.3. (Entry to the Park for commercial fishing will not be permitted).
6.1.12 Permits authorising entry to the Park may be subject to conditions regarding observance of the visitor access, boating, recreational fishing and scuba diving strategies.
6.1.13 Entry to the Park will be subject to any determinations made by the Director under r.12.56 of the EPBC Regulations concerning use of vessels in the Park, including vessel types, and anchoring and mooring.
6.1.14 The visitor access, boating, recreational fishing and scuba diving strategies will be reviewed to ensure that they are consistent with the EPBC Act, this Management Plan and the EPBC Regulations, and may be amended in the light of new information on visitor impacts, threats to Park values or better understanding of the Park’s ecosystem.
6.1.15 Members of the PKNPCMC (or their nominated representatives) will be given the opportunity to visit the Park once each year in the company of Park staff, at the Director’s expense, to inspect the condition of the Park.
Aim: To permit commercial operations that provide exceptional opportunities for the enjoyment of nature without disturbance to the Park’s natural and heritage resources.
Tourism is considered a likely avenue for significant future economic growth on the Cocos (Keeling) Islands. In addition to Government Services, mariculture and coconut products, tourism is an industry with the potential to make a significant contribution to the economic and social wellbeing of the islands and the local community. The tourism industry on Cocos (Keeling) Islands can provide a unique, nature-based experience. The historical background of the islands is also of considerable interest to tourists. The Indian Ocean Territories Regional Tourism Strategy (Watling & Assoc 1996, unpublished) made the following comments:
“The Cocos (Keeling) Islands offer a unique ecological visitor experience and are an important eco-tourism asset to the Western Australian and Australian tourism industries.
It is important that this position is not compromised through infrastructure developments that are not sensitive in either the environmental or social sense and, as a consequence, adversely impact on what is a relatively fragile ecosystem.”
Further development of the tourism industry above its current low level will depend on improvement of commercial air services to the islands and improved accommodation, infrastructure and services. During the life of the previous Plan the number of small accommodation units on the southern atoll increased and approval was given for the construction of a resort style complex on West Island.
Many visitors to the Cocos (Keeling) Islands will seek a nature-based experience, which could mean that during the life of this Management Plan the demand for visits to the Park may increase significantly. Due to the sensitivity of North Keeling Island’s wildlife, the foremost management objective of this Management Plan will be the protection and conservation of the island and its wildlife. Visitor access to the Park must be restricted to prevent conflict with that objective. Access is also limited by sea conditions and the need to provide for visitor safety. Given these constraints, controlled, low-intensity visitor access to the Park will be permitted but under strict conditions.
Commercial tours and other actions for commercial purposes are prohibited in the Park by s.354(1) of the EPBC Act unless carried out in accordance with a management plan.
(i) organised tours (other than fishing tours); and
(ii) capture of images (record by artistic representation, or on film, videotape or electronic medium) or recording of sounds.
6.2.2 No other commercial activities may be carried on in the Park, including commercial fishing, commercial fishing tours and fishing boat charters. [See also Section 4.3].
6.2.3 The following limits apply to the number of permits that may be issued to conduct organised tours in the Park:
(i) a maximum of two permits may be issued at any one time authorising the conduct of tours on North Keeling Island at any one time;
(ii) a maximum of two permits may be issued at any one time authorising the conduct of diving and snorkelling tours in the Park at any one time; and
(iii) one permit only may be issued at any one time authorising the conduct of surfing tours in the Park.
6.2.4 Permits for allowable commercial activities may be issued if the Director is satisfied:
(i) that the activity will assist in promoting an understanding and appreciation of the Park’s natural and cultural resources; and
(ii) that the activity is consistent with the management principles for the IUCN category of the zone in which the activity is to be carried out; and
(iii) safety and public liability issues have been adequately addressed.
6.2.5 Before permits to conduct diving and snorkelling tours are issued the applicant must satisfy the Director that the proposed permit holder and each other person (employee or contractor) who will be engaged in conducting tours is suitably qualified, experienced and insured to do so.
6.2.6 Relevant prescriptions in Section 6.1 of this Management Plan will apply in relation to permits for allowable commercial activities.
6.2.7 With a view to improving visitor accessibility to North Keeling Island the Director will seek to make appropriate arrangements to share vessel costs with permitted tour operators where possible, providing that issues of safety and public liability are adequately addressed. This arrangement will be in the interest of Parks Australia staff accessing the Park for management purposes.
6.2.8 The Director will facilitate relevant training as tour guides for selected residents of the Cocos (Keeling) Islands.
6.2.9 The size and frequency of visiting groups will be based on international best practice guidelines for visiting seabird colonies with high conservation value.
Aim: To encourage an informed and positive attitude from visitors and the community towards the ongoing protection and conservation of the Park and its values.
The provision of information and interpretation services, and guided tours around the Park, are key tools for communication with the public about the Park. Communication has the capacity to increase visitor enjoyment and understanding, promote safety and facilitate visitor access to a range of information. It also encourages visitors to minimise damage to the Park environment and assists in developing community and visitor understanding of, and support for, Park values and regulatory processes. A communication plan has been developed to address forms of communication to be used eg. signs, videos and brochures.
The limited numbers of visitors to North Keeling Island have not created a need for a major public education initiative. Interpretive material relating to the Park is available at Parks Australia’s office on West Island, the museum on Home Island and the Tourist Centre on West Island. Park staff also work closely with the Cocos (Keeling) Island schools and the Cocos-Malay community to raise awareness of the unique natural values of the Park.
The Cocos community and associated organisations have shown an increased level of interest in the Park, due to the potential for an increase in visitor numbers and the expectation that some of these visitors will seek to visit the Park. The expense and availability of a vessel suitable to access the Park remains an ongoing difficulty but, as tourism to Cocos increases, the commercial viability of operating a suitable vessel to access the Park will increase.
6.3.1 Parks Australia’s communications plan will continue to run concurrently with this Management Plan. A series of Park brochures will continue to be made available, and may be updated, to inform visitors about the Park’s natural and historical values. The visitor guide will also provide guidelines for low impact behaviour, consistent with the visitor access strategy. Community education programs and local advertising will continue to inform the public of these issues.
6.3.2 Local radio, television and newsletters will be used wherever possible to reach the widest possible audience on the islands and where possible written communications will also be produced in the Cocos-Malay language.
6.3.3 Displays at the Home Island Museum and Parks Australia’s office on West Island will be maintained and upgraded as resources permit.
6.3.4 Through community discussions and displays, the values of the Park and the role of park management will be further promoted within the community.
6.3.5 The walks-and-talks program for specialist groups may be continued.
6.3.6 The diving strategy will be reviewed in cooperation with the tour operators to promote safe and environmentally sensitive activities in the marine area of the Park.
6.3.7 The training program for tour operators and guides will be continued, to ensure protection of the Park, and the conduct of interesting and educational tours.
6.3.8 A training program for staff will be continued to further develop their interpretive skills.
6.3.9 A video of the Park will be produced, to increase awareness of the natural, cultural and historical values of the island, especially for those who are unable to visit the Park.
6.3.10 A sign program for the Park, including signs advising of the restricted access to the Park, an explanation of the Ramsar Convention, the significance of the Ramsar listing, together with a sign for the SMS Emden memorial, may be developed if funds permit.
6.3.11 The program of rescue and care of injured and orphaned juvenile birds in the community will be continued, to heighten awareness for environmental protection and discourage bird poaching [See also Section 4.2.5].
Aim: To work cooperatively and productively with stakeholders to achieve the management prescriptions of this Plan.
Performance indicator
Background
North Keeling Island is leased to the Director by CKISC, and the Lease agreement provides for there to be a Community Management Committee (the PKNPCMC) to advise the Director in relation to the preparation of management plans for the Park, and matters that arise in relation to management plans. [See Section 2.8].
The Cocos (Keeling) Islands Act 1995, administered by the Minister for Local Government, Territories and Roads, provides the legislative basis for much of the Territory’s administrative, legislative and judicial systems. An Administrator, appointed by the Governor-General, is responsible for the law, order and good governance of the Territory and is the head of the Commonwealth Administration in the Territory.
The Territories Law Reform Act 1992 amended the Cocos (Keeling) Islands Act 1955 and applied laws of the State of Western Australia to the Territory. This was a major step in extending to the residents of the Territory the same rights, responsibilities and obligations as enjoyed by other Australians.
CKISC was established in 1992 under the applied Local Government Act 1960 (WA)(CKI) (now the Local Government Act 1995 (WA)(CKI)), replacing the Cocos (Keeling) Islands Council that had existed under the Local Government Ordinance 1979. The first members of the CKISC were elected in 1993. The Council currently has seven members and performs functions under the Local Government Act that are similar to local government bodies on the Australian mainland.
The Commonwealth is primarily responsible for the delivery of government services in the Territory, including under the applied laws of Western Australia. Agencies of the Western Australian government provide services under applied laws, under Service Delivery Agreements with the Commonwealth, and functions and powers under the applied laws have been delegated to Western Australian government officials.
The population of Home Island mainly comprises the Cocos-Malay community. Those ‘Home Islanders’ have descended from people brought to the islands in the nineteenth century from Malaya, East Africa, China, Java, India and Ceylon. They speak a local dialect of the Malay language, known as Cocos-Malay, and follow the Islamic faith. They have been a relatively isolated community for most of the 175 years they have lived on the islands. The Cocos-Malay community have had significantly increased contact with the West Island community and mainland Australia since the Australian Government’s purchase of the majority of the Clunies-Ross’s interests in the islands in 1978.
Although many of the Home Islanders mix freely with residents of West Island, the Home Island community maintains a significant physical and cultural separation from West Island. Its residents lead a lifestyle in accordance with their culture and religion. At the time of the Act of Self Determination 1984 the Commonwealth gave a commitment to the Cocos-Malay people to respect their religious beliefs, traditions and culture. In all interactions and consultations with the Cocos-Malay community, this respect is of great importance.
West Island has a population of about 100 people, predominately comprising the mainland-based employees of various government departments and their families, who are usually on short term postings of between one and three years.
This Management Plan allows for commercial tours to be conducted in the Park under a permit issued by the Director [see Section 6.2]. It is expected that these tours will be conducted by businesses based in the Territory, providing opportunities for local residents.
7.1 The PKNPCMC established under the previous plan of management will continue.
7.2 The PKNPCMC will be the primary liaison mechanism with the local community for significant issues relating to Park management.
7.3 In relation to significant Park management issues, the Director will consult, as appropriate, with relevant stakeholders including CKISC, the Territory Administration, PKNPCMC, relevant government agencies, the local community, tour operators, Cocos Islands Cooperative Society, and Cocos Congress.
8. Business Management
Aim: To manage the Park in an effective and efficient manner and in accordance with the obligations under the Management Plan and the lease agreement.
It is the function of the Director under the EPBC Act (s.514B) to “administer, manage and control” Commonwealth reserves, and the Director must comply with the lease agreement (see section 2.8). The Director is assisted in the performance of the Director’s functions by Parks Australia, whose staff are employees of the Department of Environment and Heritage assigned to assist the Director. The Director has delegated certain functions and powers under the EPBC Act and the EPBC Regulations to specified Parks Australia staff.
Park staff undertake many and varied routine operations, as outlined in Table 5. Visits to North Keeling Island require swimming ashore some 100m from the boat (through the surf and over the reef). The isolation of the island also adds greater risk to routine activities, when compared with similar activities in an accessible location. In addition, some Park management activities are inherently hazardous, such as law enforcement (see Appendix 3).
Prescriptions
8.1.1 A Management Plan Implementation Schedule will be developed. Based on the implementation schedule, each year annual priorities and work plans will be developed and implemented.
8.1.2 The routine operations listed in Table 5 will continue, consistent with the annual priorities.
8.1.3 Early in the life of this Management Plan, the Director will undertake a safety audit of Park management activities and visitor use of the Park and investigate ways of reducing risks to the health and safety of staff and visitors.
8.1.4 Training in Park management, administration, environmental protection, re-vegetation and rehabilitation will continue to be provided to a trainee ranger, which will be a Cocos-Malay permanent resident, where possible.
8.1.5 Parks Australia will provide an ongoing program of in-service and external competency based training, focusing on skills and career development for staff.
8.1.6 During the life of the Plan, the Director may develop, review or update existing operational plans and management strategies for carrying out prescriptions in the Plan dealing with conservation and Park management issues for both the marine and terrestrial areas. These conservation and management issues include but are not limited to:
(a) management of individual species (animal or plant), including native and introduced species;
(b) management of a number of species and/or communities;
(c) the collecting, taking or harvesting of a species;
(d) unplanned or unforeseen events or actions which arise during the life of the Plan; and
(e) managing visitor access and public safety at specific locations;
Operational plans and strategies will be consistent with this Management Plan and the EPBC Act.
Aim: To ensure best practice use of resources.
Within the Park, the Director will apply best practice resource conservation principles wherever practicable. Improving the environmental efficiency of infrastructure will be considered where possible.
8.2.1 Through a philosophy of ‘rethink, reduce, reuse, repair, recycle,’ Park management will:
incorporate best practice environmental management into management practices;
work closely with employees, unions, clients, suppliers and other interested parties to continually refine work practices and operations to best practice standards;
regularly monitor and report on environmental performance;
as a minimum, comply with internal environmental management plans and all relevant government policy and legislation; and
actively promote and encourage the adoption of ecological sustainable work practices and operations within the organisation.
Aims: To provide visitors and staff with safe, functional facilities to the best possible standard with minimal impact on the environment. To ensure an effective and efficient maintenance program that protects Park assets.
Performance indicators
While this Management Plan is in operation s.354(1) of the EPBC Act prohibits the Director and other persons carrying on an excavation, erecting a building or other structure, or carrying out works in the Park except in accordance with this Plan.
Prescriptions
8.3.1 The Director (including persons acting on behalf of the Director, such as Park staff and contractors) may carry on an excavation, erect move or remove a building or other structure, or carry out works in the Park, including:
– an additional fibreglass staff accommodation hut;
– a small desalination plant ;
– upgrading, repairing, removing or adding signage;
– replacement or relocation of existing assets; and
– other facilities for the purpose of park operations.
8.3.2 No other person may carry on an excavation, erect, move or remove a building or other structure, or carry out works in the Park.
8.3.3 The Director will ensure programs are in place, and budget and staff resources are available, to maintain required capital infrastructure to a reasonable standard for the life of the assets.
8.3.4 An asset management system will be continued during the life of this Management Plan. The system will continue to be based on the total life-cycle of assets and will be aimed at extending the life of existing assets and improving asset performance through the establishment and implementation of a maintenance schedule and total life cycle costings.
8.3.5 Environmental assessment will be undertaken for all proposals for new capital works and infrastructure, and alterations, renovation or significant repairs to existing capital assets and infrastructure. This environmental assessment will be conducted in accordance with Section 8.5.
8.3.6 Hardwood and softwood timber may be brought into the Park and used for construction purposes, posts and poles.
8.3.7 Preservative-treated timber may be brought into the Park for management purposes. Sites will be monitored for possible effects of leaching. Waste treated timber will be disposed of safely, and off Park if practicable.
Aim: To encourage compliance with relevant legislation, protect the Park environment and encourage and promote appropriate use and appreciation of the Park.
In order to achieve the aims of compliance and enforcement in relation to Pulu Keeling National Park, a compliance and enforcement strategy has been developed and implemented. The strategy is based on the Department of the Environment and Heritage Compliance and Enforcement Policy and Strategy and the Parks Australia Compliance and Enforcement Manual. It utilises a risk management approach, prioritising the targeting of high risk compliance issues and achieving compliance using education and an escalating range of sanctions in response to any continuing non-compliance.
Staff may be appointed by the Minister under the EPBC Act as rangers or wardens and exercise the powers and functions conferred on them by the Act. All members and special members of the Australian Federal Police are ex officio wardens. Officers or employees of other Commonwealth, State or Territory agencies may also be appointed by the Minister as rangers or wardens.
8.4.1 Compliance and enforcement activities in the Park will be carried out in accordance with the Pulu Keeling National Park Compliance and Enforcement Strategy.
8.4.2 The Pulu Keeling National Park Compliance and Enforcement Strategy will be reviewed annually and may be amended.
8.4.3 Compliance and enforcement priorities will reflect assessed risks and will be regularly reviewed.
8.4.4 Appropriately trained and qualified rangers and wardens will undertake regular patrols and spot checks of visitors and the Park.
8.4.5 Parks Australia staff will liaise with members of the Australian Federal Police, Director of Public Prosecutions, Customs and other agencies in relation to compliance and enforcement issues as appropriate.
Aim: To protect and manage the Park to preserve its undisturbed condition.
As noted in Section 2.4 of this Management Plan, actions that could have a significant environmental impact on the Park may trigger the assessment and approval provisions of the EPBC Act and may be decided by the Minister to be ‘controlled actions’. Responsibility for compliance with these provisions lies with the persons taking, or proposing to take, the relevant action.
A person proposing to take an action that the person thinks may be, or is, a controlled action should refer the proposal to the Minister for the Environment and Heritage for the Minister’s decision on whether or not the action is a controlled action. Where the Director considers that a proposed action by another person may be a controlled action in relation to the Park, the Director may refer the proposal for the Minister’s decision.
Proposed actions in the Park that are not controlled actions under the EPBC Act may still be subject to environmental assessment by the Director and Park staff in accordance with the following prescriptions.
8.5.1 The environmental impact of proposed activities in the Park will be assessed. Environmental assessment of a proposed activity that is not subject to the assessment and approval provisions of the EPBC Act will be in accordance with best practice and the provisions of this Management Plan.
8.5.2 Any development and routine maintenance operations (including construction and rationalisation of facilities, access, structures and services) will conform to the highest practicable standards and be undertaken and developed in a manner appropriate to a national park of international standard.
Aim: To responsibly manage Cocos (Keeling) Islands Conservancy to ensure the aims of this Plan are met in a way which maximises the benefit to conservation programs, the community and visitors to the Park.
Park management funds are allocated from the Australian National Parks Fund. The principal sources of the moneys of the Fund are prescribed by s.514S of the EPBC Act and include charges imposed by the Director under s.356A of the EPBC Act for entering or using a Commonwealth reserve, and permit fees imposed by the EPBC Regulations. Charges may be imposed under s.356A during the life of this Management Plan and permit fees may be reviewed.
Park staff are responsible for the management of the Park’s budget in accordance with instructions issued by the Director of National Parks. In accordance with Commonwealth government policy, accounts are maintained on an accrual accounting basis and decisions regarding capital works and infrastructure must consider total life cycle costings.
Section 514T of the EPBC Act prescribes how the Director may use the money of the Australian National Parks Fund. Principally the moneys must be used in payment or discharge of the costs, expenses and other obligations incurred by the Director in the performance of the Director’s functions. As an authority for the purposes of the Commonwealth Authorities and Companies Act 1997, the Director is also subject to the requirements of that Act.
8.6.1 The Park budget, income, and expenditure will be managed in accordance with the Director’s statutory obligations and instructions issued by the Director.
8.6.2 Charges imposed under s.356A of the EPBC Act in relation to the Park will be monitored by the Director and, where considered appropriate, approval for changes may be sought from the Minister, and implemented.
8.6.3 Fees for permits for activities in the Park will be monitored by the Director and, where considered appropriate, changes may be recommended, and implemented if approved.
Aim: To evaluate progress in implementing this Plan and to conduct a final technical audit of the implementation of the Plan
This Management Plan has been developed on the basis of financial and staff resources, circumstances and knowledge available in 2003. Management techniques considered appropriate at one time can be expected to change as knowledge continues to improve, and pressures on the Park change over the anticipated seven year period of this Management Plan. Monitoring the implementation of this Management Plan will provide a basis for ensuring prescriptions are carried out and provide information for the development of the next Plan for the Park. An Implementation schedule will be developed for the prescriptions of this Plan. [See also Section 8.1.1].
There is increasing recognition that traditional output measures fail to adequately assess performance and that the development of practical and meaningful outcome measures, applicable to protected area management, are essential. To this end, the Director has developed a Park management performance assessment framework that identifies clear aims for the agency and, consequently, individual parks and reserves. Prescriptions are based on, amongst other things, Government policy, the requirements of legislation including the EPBC Act, and on the particular attributes and management issues of the Park.
Prescriptions are organised against seven Key Result Areas that cover the range and categories of issues that the Director is required to address across the national parks estate. This Management Plan reflects the relevant Key Result Areas applying to the Park.
All performance reporting, including reporting on the implementation of this Management Plan, will be undertaken within a performance assessment framework and will require both annual review and a full audit towards the end of the life of the Plan. Performance indicators will be progressively developed and used as the Plan is implemented.
Until outcome-based reporting is developed for protected area management, the following system of assessment will continue to be applied.
9.1 The Government Conservator will prepare an annual report on the implementation of the prescriptions in this Management Plan for the Director.
9.2 Within 6 years of the commencement of this Management Plan, the Assistant Secretary, Parks Australia North, in consultation with the PKNPCMC, will establish a Technical Audit Committee.
9.3 In time to contribute to the development of the next Management Plan, the committee will undertake a technical audit of this Management Plan with the following terms of reference:
– to consider each prescribed management action and determine whether or not it was carried out;
– to evaluate the performance of each prescribed action in relation to the objective or objectives it was intended to serve;
– in the case of any prescribed action that was not implemented, or which failed to achieve the desired outcome, to determine the cause;
– to report the results of the audit to the Director together with an overall assessment of the delivery of the Management Plan in relation to its objectives; and
– in the light of this Management Plan’s performance, to recommend to the Director any changes to the objectives and prescribed actions that should be considered during the preparation of the next Plan.