7. Existing protection and management

The commercial marine tourism industry plays a significant role in showcasing the Reef’s natural and cultural values, enhancing visitor experiences and assisting in managing and protecting the Region’s values. This industry’s use of the Region is jointly managed by Australian and Queensland government agencies and a range of partners and stakeholders.

A comprehensive suite of management tools is in place to regulate the industry, associated activities and their impacts. Most tourism (86 per cent in 2022) occurs in three key areas (Cairns, Port Douglas and the Whitsundays) that amount to about seven per cent of the Marine Park.¹⁹⁶⁷ About 90 per cent of the Region, therefore, has low commercial marine tourism visitation and low-level related impacts, such as physical damage to reefs and island vegetation, pollution, wildlife disturbance, reduced amenity and loss of cultural values. The threats associated with commercial marine tourism (Section 5.2.3) are being reduced through improved management that incorporates zoning plans, regulations, policies, plans of management, guidelines and strategies, such as the Tourism Management Action Strategy,¹¹⁸⁷ and education. 

The commercial marine tourism industry is a key partner in Reef management. Stakeholder engagement ¹⁹⁶⁸ in planning and governance incorporates mainly informing (for example,  through targeted education and stewardship programs), consulting (for example,  through Local Marine Advisory Committees) and involving (for example, through Reef Guardians and the High Standard Tourism Program). There are now more than 120 Master Reef Guides, who deliver up-to-date scientific and management information about the Reef and its values to domestic and international visitors. High Standard Tourism Operators voluntarily operate to a higher standard than is required by legislation and are independently certified and monitored. These operators ensure an ecologically sustainable and high-quality experience for visitors. The number of High Standard Tourism Operators has increased from 19 in 2004, to 69 in 2017, and 72 in 2023.

Programs such as Eye on the Reef and Master Reef Guides allow operators to build capacity within their staff while providing an assessment of the reefs they visit. The Eye on the Reef program enables anyone who visits the Reef to collect information about reef health, marine animals and incidents. The program has seen increases in the number of reef health surveys conducted by tourism staff and by visitors (through a product offered on trips) and received by the Reef Authority. Additionally, some commercial marine tourism operators undertake in-water actions such as reef restoration, crown-of-thorns starfish and Drupella control, sightings, compliance reports and the presentation of World Heritage values to domestic and international visitors. These partnerships offer opportunities for interactions that build understanding of the Reef’s values.

Commercial marine tourism was heavily impacted during the COVID-19 pandemic as the industry experienced a decrease in visitor numbers, shortages in skilled staff and increased operational costs. Annual visitation decreased about 41 per cent from the average of the previous seven years, and although numbers are increasing (47 per cent from 2020 to 2022), it is expected to take several years before a return to pre-pandemic numbers. As a result, the Australian Government contributed significant funds to support the industry through the Tourism Industry Activation and Reef Protection Initiative (2021–2023). The subsequent Tourism Reef Protection Initiative builds on existing programs to engage marine tourism operators to June 2024, with 26 operators selected to deliver these services. In 2023, the industry continues to experience difficulties in attracting, training and retaining staff, due to issues such as a shortage of available housing for staff.

Outputs relating to the commercial marine tourism industry are largely on track and will help to improve some Reef values. The complex joint management arrangements between the Reef Authority and Queensland Parks and Wildlife Service, are working relatively well but could be improved through streamlining, alignment and updating of policies.

A gap within the industry is the limited number of Indigenous Reef tourism operators and their lack of visibility.¹⁹⁶⁹ There are challenges in ensuring effective consultation, engagement and benefit sharing arrangements with Traditional Owner groups, especially within Traditional Use of Marine Resources Agreement areas and where there are Native Title determinations; ensuring effective incorporation of Indigenous heritage values in tourism offerings, as appropriate; and developing a strong Indigenous tourism advocacy organisation to promote and market Indigenous tourism on the Reef. Dated policies that require reviewing to ensure they meet future needs, developing shared skill sets among relevant partners and effective consultation, engagement and benefit sharing arrangements with Traditional Owner groups are additional ongoing challenges.

The Reef Authority Tourism Management Action Strategy (Tourism Strategy) was introduced in 2021 and aims to deliver sustainable tourism outcomes. It includes actions to address some of the gaps identified above.¹¹⁸⁷ The Tourism Strategy will guide the review, simplification, deregulation and rationalisation of tourism policies and other management tools under the Policy and Planning Strategic Roadmap. Its implementation is ongoing and should provide opportunities for improved infrastructure, processes to support tourist numbers and behaviours, and governance arrangements, including effective consultation with Traditional Owners.

Outcomes are difficult to determine, particularly in relation to the economic sustainability of the commercial marine tourism industry into the future. This will depend on international competitiveness, the level of market demand and the availability of well-trained staff. All of which are contingent on a healthy and sustainable Reef environment — something that is under threat from multiple and cumulative impacts.

Overall, the impact of the commercial marine tourism industry on the Reef is restricted in extent, low in severity and there are well-resourced planning and management systems in place to support sustainable tourism outcomes. The threat of climate change, however, represents the main threat to the industry as it will likely impact the quality of the nature-based Reef experience, enjoyment of visitors, visitor numbers and the social and economic sustainability of the industry.