7. Existing protection and management

Effective management of the Region is a complex task, given the range of threats and their variation across space and time. The management effectiveness assessment11 focused on the six elements of the management framework: context, planning, inputs, processes, outputs and outcomes. It addressed 14 broad management topics and considered the activities of relevant Australian and Queensland government agencies and other contributing partners.

The assessment found the Region continues to be well managed, with more than 80 per cent of elements across the management topics considered effective or mostly effective (Table 7.4). Context was the strongest element, reflecting managers’ knowledge and understanding of Reef values, national and international influences, and relevant government and non-government actors across the overall system. Overall, the weakest elements were processes and outcomes. Notable management improvements since 2019 include the enhanced funding and planning initiatives through the Reef 2050 Plan ² and Queensland Sustainable Fisheries Strategy 2017–2027.¹²⁵¹

For some aspects of management, declines in effectiveness have occurred since 2019. The challenges posed by climate change in relation to existing planning and governance systems are growing, as is recognition of other impacting processes. The declines often relate to emerging recognition of gaps in the understanding of impacts and their associated coverage in planning systems and programs, as well as extended lag time in achieving key outputs and outcomes. Further gaps relate to governance, the setting of relevant standards and targets for benchmarking, achieving environmental and economic sustainability for the Region, and the integration of Indigenous knowledge into decision-making. 

Direct use of the Region is generally well managed, likely due to the lower complexity involved, relative to external factors, and the maturity of management systems. For fishing, achievement of outcomes remains partially effective, which reflects the lag time needed to achieve outcomes under the Queensland Sustainable Fisheries Strategy 2017–2027,¹²⁵¹ and better understanding of the status of some fish stocks and risks associated with fishing activities in the Region.

Overall, management to protect the Region’s biodiversity, heritage and community benefit values is mostly effective. Inputs to management of heritage and community benefits, however, have not improved from partially effective, and achievement of heritage and biodiversity outcomes has been trending downward since 2019. 

Management is considered weakest for climate change and coastal development, both external factors influencing the Region. Nevertheless, climate change has seen the most improvement in management effectiveness since 2019, including enhanced management of climate change risks and advances in climate change policy at national, state and local levels. Notable policy advances include the introduction of the Climate Change Act 2022 (Cth) and the inclusion of a specific work area under the Reef 2050 Plan that articulates clear goals and strategic actions towards achieving emission reduction targets. Despite this progress in policy, the management of the Reef regarding climate change remains subject to significant challenges. Land-based runoff is another external factor which, while largely well managed, has seen declines across planning, inputs, processes and outputs, and the achievement of outcomes remains partially effective.

Achievement of outcomes has declined across six management topics. This highlights weaknesses in relation to protection of Reef values and reduction of threats to these values, and this may indicate a level of ‘drift’ in the governance system.²⁰⁰⁴ For instance, issues related to: centralised and siloed decision-making in some areas; long time frames from policy changes to delivery and implementation; and, declining system flexibility and alignment with ancillary organisations and policies, including international policy, especially in relation to climate change. 

While the challenges involved in managing a large and diverse system are significant, many threats to the Reef are being addressed in meaningful and positive ways. Managers are using research to inform planning and management, extensive on-ground work has been undertaken since 2019, and partnerships have increased in number and diversity and are underpinned by increasingly complex arrangements. Opportunities to improve resourcing of effective engagement and partnering with Traditional Owners and develop greater cross-sectoral and cross-scale data management, coordination and collaboration will be important in the near future.