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TheLongandWindingRoad:thedevelopmentofaComprehensive,AdequateandRepresentativeSystemofHighlyProtectedMarineProtectedAreasinVictoria,Australia.

GeoffWescott,

SchoolofEcologyandEnvironment,

FacultyofScienceandTechnology,

DeakinUniversity,MelbourneCampus,

221BurwoodHighway,

Burwood3125

Victoria,Australia

wescott@deakin.edu.au

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.

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[46]Ray,G.C.andMcCormack-Ray,M.G.1992.MarineandEstuarineProtectedAreas:astrategyforanationalrepresentativesystemwithinAustraliacoastalandmarineenvironments.ConsultancyreportfortheAustralianNationalParksandWildlifeService.DepartmentofSciences,UniversityofVirginia.

[47]McNeill,S.1994.Theselectionanddesignofmarineprotectedareas:Australiaasacasestudy.BiodiversityandConservation3:586-605.

[48]Ivanovici,A.M.1993.PlanningforaNationalRepresentativeSystemofMarineandEstuarineProtectedAreas:identificationofpriorityareas.In:op.cit.44.

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[50]Kriwoken,L.K.andHaward,M.1991.MarineandestuarineprotectedareasinTasmania,Australia:thecomplexitiesofpolicydevelopment.OceanandShorelineManagement15:143-163

[51]Kriwoken,L.K.1997.Australianbiodiversityandmarineprotectedareas.OceanandCoastalManagement.33:113-132.

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[54]Zann,LP.1995.OurSeas,OurFuture:MajorfindingsoftheStateoftheMa

rineEnvironmentReportforAustralia.PublishedbytheGreatBarrierReefMarineParkAuthorityfortheDepartmentoftheEnvironment,SportandTerritories.Canberra.

[55]Bleakley,C.,Ivanovici,A.andOttesen,P.A.1996.AssessmentofMarineProtectedAreasinAustralia.StateoftheMarineEnvironmentTechnicalAnnex3.GreatBarrierReefAuthority,Townsville.

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[69]Bird,E.C.F.1993.TheCoastofVictoria.MelbourneUniversityPress,Melbourne.

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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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[73]op.cit.30

[74]Haward,M.1989.TheAustralianoffshoreconstitutionalsettlement.MarinePolicy13:334-348.

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[79]Ferns,L.W.andHough,D.(Eds.)1999.EnvironmentalInventoryofVictoriasMarineEcosystems,Stage3,Volume1.Parks,FloraandFaunaDivision,DepartmentofNaturalResourcesandEnvironment,Melbourne.

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[81]OHara,T.D.2000.VictorianProvince.In:Sheppard,C.R.C.(Ed.)SeasattheMillennium:anenvironmentalevaluation.ElsevierScience.Oxford.

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[86]Blayney,CandWescott,G.2004.ProtectingMarineParksinReality:theroleofregionalandlocalcommunicationprograms.AustralasianJournalofEnvironmentalManagement:11(2):126-128.

[87]Phillips,J.1989.SouthGippslandMarineandCoastalParksPlanningProject:progressreport.Melbourne.

[88]DepartmentofConservationandEnvironment.1991.WilsonsPromontoryMarinePark:proposedmanagementplan.DCE,Melbourne.

[89]DepartmentofConservationandEnvironment.1992.BunuronngMarineandCoastalPark:proposedmanagementplan.DCE.Melbourne.DCE.

[90]MarineReservesCommittee.1978.ProposaltoestablishamarinereserveatthesouthernendofPortPhillipBay.MinistryforConservation.Melbourne.

[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.

[95]Wescott,G.1986.MarinereservesandparksdeclaredinSouthGippsland.Parkwatch:145:4-5.

[96]Wescott,G.,1987.VictoriasForgottenMarineParksandReserves.

AustralianParksandRecreation23(5):15-18.

[97.]Campbell,S.,Molan,L.andThomas,I.1988.MarineParks.Parkwatch.December19988:70-13.

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[98]Rosenbaum,1990.TheStatusofMarineConservationinVictoria.Parkwatch.Sept.:5-8.

[99]Malcolm,S.1990.SouthGippslandsMarineandCoastalParks.Parkwatch161:5-8.

[100]Clarke,R.1990.MarineparksandreservesinVictoria:areview.UnpublishedMastersofEnvironmentalSciencethesis,MonashUniversity.Melbourne.

[101]op.cit.72.

[102]Malcolm,S.1993.Victorianmarineandestuarineprotectedareas:thestorysofar,

andhopesforthefuture.In:op.cit.44.

[103]Wescott,G.C.etal.,1994.RecommendationsoftheCoastal

ReferenceGroupontheEstablishmentoftheCoastandBayManagementCouncil.CoastalReferenceGroup,Melbourne.

[104]LCC.1995.MarineandCoastalSpecialinvestigation.ProposedRecommendations.

GovernmentPrinter.Melbourne.

[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.

[110]ECC.2000.MarineandCoastalEstuarineInvestigation:FinalReport.EnvironmentConservationCouncil,Victoria.

[111]op.cit.20

[112]op.cit.106.

[113]op.cit.30

[114]op.cit.96

[115]op.cit.97

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[116]op.cit.72

[117]op.cit,71

[118]op.cit.71

[119]Wescott.G.2004.TheTheoryandPracticeofCoastalAreaPlanning:LinkingStrategicPlanningtoLocalCommunities.CoastalManagement32:95-100

[120]Wescott,G.1995.Victoria'sNationalParkSystem:CantheTransitionfromQuantityofParkstoQualityofManagementbeSuccessful?AustralianJournalof

EnvironmentalManagement,2(4),pp.210-223.

[121]Robin,L.1988.DefendingtheLittleDesert:theriseofecologicalconsciousnessinAustralia.MelbourneUniversityPress,Melbourne.

[122]op.cit.120.

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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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