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The Basin Plan —
striking the right balance
      Professor Barry Hart
Where is the Murray–Darling Basin?


                  Large system
                   1 million km2
                   1/7 area of Australia
                   Contains Australia’s
                    three longest rivers
                      – Murray — 2,380 km
                      – Darling — 1,480 km
                      – Murrumbidgee — 1,490 km
                   23 river basins
                   Major climate differences
                    (north to south)
                   Murray — highly regulated
                    Darling — unregulated
Hydrology of the Basin




                            Northern
                             Basin




                         Southern
                          Basin
Basin Plan — why the need?

Significant changes to hydrology
 less flooding (overbank flows)
 changes to seasonal flow regimes
Overallocation of water resources
 particularly severe in southern Basin
Degradation of the environment
 river red gums dying
 fish populations reduced
 waterbird number reduced
 algal blooms
 water quality degradation — salinity
 Murray mouth closed
Increased threat to agricultural production
Balancing the equation
    Without
  development                 Current

                            Interceptions


                                             42% consumptive
  Environment                Diversions
      60%




                            Environment

                                             58% environment
   Flow to sea
      40%

                           Flow to the sea




                 Murray — 58%, 42%
                 Darling — 28%, 72%
Basin Plan — purpose

Objective
 to develop and implement an integrated water
  resource plan for the whole Basin
Basin Plan seeks to rebalance the system
 more water for the environment
 minimise the impacts on irrigators and local
  communities
MDBA’s task
 set the bounds with sustainable diversion
  limits (SDLs) and work with the states and
  local communities to implement
MDBA only has powers to do part of the reform
  but ……
The Basin Plan

The Basin Plan must include:
 sustainable diversion
  limits (SDLs)
 water resource plan
  accreditation
 Environmental
  Watering Plan
 Water Quality & Salinity
  Management Plan
 water trading rules
 monitoring and
  evaluation program
What are we aiming to achieve?

A healthy working Basin with:
 critical drinking water needs met
 rivers connected to creeks, billabongs and
   floodplains
 healthy ecosystems supporting a wide variety
   of plants and animals
 sufficient flows to flush nutrients and salt
   through the system
 sustainable growth in food and fibre production
 long-term confidence for businesses and
   communities
 ‘fit for purpose’ water quality
 a free market for trading water
What we wish to achieve
Four-stage process



 Information      Information
   feedback    formal submission     Adoption




    The          The draft         The Basin         Initial
   Guide         Basin Plan          Plan       implementation




   2010              2011             2012          2019
The task

                               Healthy rivers

Social and economic           Balance | Judgement            Environmental science
• Macro-economic models                                      • Salt and nutrient export target
• Parliamentary enquiries                                    • End-of-system flows
• Cost-benefit analysis                                      • 106 hydrologic indicator sites:
• Local impacts study                                           - key ecosystem functions
                                                                - key environmental assets
                            Environmentally
                              sustainable
                                level of
                                  take




                                        System constraints
                                        • River operations
                                        • Policy
                                        • Physical
Decision-making process



 Environment                                      Implications
  (science + judgements)                          • social and economic
 • define the environment                         • environmental
   we want to protect
 • define what we want              Balance
   it to be (objectives)
 • determine how much
   water we need to achieve this
   — the environmental water
   requirement (EWR)




                                    ↔
                Environmentally               Sustainable        more than
                sustainable level             diversion            just a
                  of take (ESLT)              limit (SDL)         volume
Defining the environment

 Largely done in the Water Act 2007 (Cwlth)
 Key environmental assets
  – wetlands, floodplain forests, rivers,
     estuary (Coorong)
  – largely specific areas, locations
  – judgements required to define which are ‘key’
     assets and how much water they need
 Key ecosystem functions
  – largely ecological processes
  – primary production, fish migration,
     triggers for breeding, material transport
  – judgements required in relating
     functions to flows
 Ecosystem services
  – not considered yet
How much water is needed?

Key environmental assets
 Too many to assess — over
  2000 identified
 18 assets selected as
  hydrologic indicator sites
 These sites are:
  – hydrologically representative
  – have a good information
     base
 Most sites selected are
  wetlands or floodplain forests
  that require high flows largely
  through overbank flows
 High flows make the largest
  contribution to volume and
  therefore the largest influence   Gwydir Wetlands, north-west
                                    of Moree, New South Wales
  on ESLT                                         Photograph Ray Dawson
Hydrologic indicator sites (assets)

                                                                 Lower Balonne River Floodplain System


                                                                  Narran Lakes


                                                        Booligal Wetlands


                                                   Lachlan Swamps


                                           Great Cumbung Swamp


                                Lower Murrumbidgee Wetlands


                         Lower Darling River System

                                                                                                                                           Gwydir Wetlands
                        Hattah Lakes
                                                                                                                                     Macquarie Marshes
         Riverland – Chowilla Floodplain
                                                                                                                            Mid Murrumbidgee Wetlands
     Coorong, Lower Lakes and
          Murray Mouth




Wimmera River Terminal Wetlands
                                                                                                                   Barmah Millewa Forest

                  Edward Wakool River System
                                                                                                         Lower Goulburn River Floodplain
                                 Gunbower Koondrook
                                  Perricoota Forests
How much water is needed?
Without development
How much water is needed?
Baseline
How much water is needed?
SDL scenario
Balancing



     Key        18 hydrologic
environmental   indicator sites     Socio–
    assets         (assets)        economic
                                  assessment




                Environmental
                    water                       Sustainable
                requirements                     diversion
                                                   limits




     Key        88 hydrologic
  ecological    indicator sites     System
  functions       (functions)     constraints
Environmental water

Within each catchment, two components identified:
 local requirements to water the assets and
   functions in that catchment
 downstream requirement to water assets and
   functions in lower parts of the Basin

Example — Goulburn catchment
 local for the river channel and lower Goulburn
  Floodplain
 downstream — contribution to River Murray assets
  and functions
Social and economic effects

         Long term, Basin scale
          small economic effect
         Short term, local scale
          small communities
            with high reliance
            on irrigation will
            be most at risk




Effects of drought at
Lake Alexandrina,
Milang, South Australia
Photo: Jim Donaldson


Yarrawonga Weir and
Lake Mulwala
Photo: Michael Bell
How much more
environmental water is needed?



      Basin wide
    Additional 2,800 GL/y
     (long-term average)    however
                            since 2009
                              890 GL     therefore
                            recovered        by 2019
                                            < 1,900 GL
                                         to be recovered
Indicative rebalancing


           2,700 GL/y      Interceptions
                                                 33%
           8,100 GL/y        Diversions
                                             consumptive

  Additional
environmental
    water

           16,800 GL/y      Environment
                                                 67%
                                             environment


           5,100 GL/y      Flow to the sea




                         North — 25%, 75%
                         South — 44%, 56%
Implementation

 Major rural reform —
  will take time
 The Basin Plan as part
  of a plan for the Basin
 Will need a ‘whole of
  government’ response
  to minimise impacts on
  local communities
 States and community
  will be vital part of the
  implementation through
  developing and
  implementing regional                          Kulcurna area on the
                                            Chowilla floodplain before
  water resource plans                   environmental watering, 2010
                                                          Photo: Corey Brown


 Need less focus on the SDLs and more
  focus on how the extra water is used
Strategies for adjustment

                                                   Irrigators
                                                   • Commonwealth
                  Current         Basin Plan
                                                      buybacks ($3.1 billion)
                Interceptions    Interceptions     • Modernisation
                                                      program ($5.9 billion)
   42%                                              Consumptive
consumptive
                 Diversions        Diversions

                                  Environment




                Environment
    58%                                              Environment
                                                   Communities/
environment                                          businesses
                                                   • Lost water = $ lost to
                                                     towns/regions
                                 Flow to the sea   • Debt levels high
               Flow to the sea
                                                     due to drought
                                                   • Mitigating impacts —
                                                     government assistance?
Opportunities

 Time extension to 2019
  provides opportunity
 In 2012 the Basin Plan will
  recommend ‘indicative
  SDLs’ for each catchment
  and the Basin
 This is within a
  ‘constrained’ system
 Opportunities to address
  some of these constraints
  (with potential changes
  to SDLs)
 Opportunity to                          Kulcurna area on the
                                       Chowilla floodplain after
  progress towards more           environmental watering, 2010
                                                    Photo Corey Brown

  contemporary river management
Constraints

Operational constraints
 change river operating rules
  (currently focused on consumptive water delivery)
 optimise storage management
Policy constraints
 modify storage carryover rules
 water sharing plans — alter to better protect environmental
  water during droughts
 remove state-based policies that impact of environmental
  outcomes
Physical constraints
 remove/modify infrastructure that impede high flows
 purchase easements to allow high flows to be delivered
 adopt engineering works and other innovative solutions
An adaptive plan

                                                •   More buybacks
                                                                                        Final SDL
                                                •   Address some constraints
  Consumptive water                             •
                                                •
                                                    More modelling & science
                                                    Environmental works


                               Indicative
                                  SDL



                                                             Gap

                               890 GL/y
      850 GL/y                recovered
     recovered




                                                    Environmental water
2004                   2009                  2012                         2015                       2019
National Water                              Basin Plan                   Basin Plan               Basin Plan
Initiative commenced                         adopted                    ‘pause point’         fully enforced
                                                                                        SDLs need to be met
Summary

 Development and
  implementation of the Basin
  Plan — major rural reform
 Significant reductions
  in current diversion limits
  required
 Commonwealth investment
  ($9 billion) should ‘purchase’
  all the water required
 But still need a
  whole-of-government response                    Azure kingfisher.
                                                       Photo: David Kleinert

  to minimise impacts on some local communities
 Many opportunities to progress towards more
  contemporary river management by addressing
  many of the current constraints
 This is a ‘journey’ we have just begun

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14th Riversymposium, keynote presentation from Prof Barry Hart (2011)

  • 1. The Basin Plan — striking the right balance Professor Barry Hart
  • 2. Where is the Murray–Darling Basin? Large system  1 million km2  1/7 area of Australia  Contains Australia’s three longest rivers – Murray — 2,380 km – Darling — 1,480 km – Murrumbidgee — 1,490 km  23 river basins  Major climate differences (north to south)  Murray — highly regulated Darling — unregulated
  • 3. Hydrology of the Basin Northern Basin Southern Basin
  • 4. Basin Plan — why the need? Significant changes to hydrology  less flooding (overbank flows)  changes to seasonal flow regimes Overallocation of water resources  particularly severe in southern Basin Degradation of the environment  river red gums dying  fish populations reduced  waterbird number reduced  algal blooms  water quality degradation — salinity  Murray mouth closed Increased threat to agricultural production
  • 5. Balancing the equation Without development Current Interceptions 42% consumptive Environment Diversions 60% Environment 58% environment Flow to sea 40% Flow to the sea Murray — 58%, 42% Darling — 28%, 72%
  • 6. Basin Plan — purpose Objective  to develop and implement an integrated water resource plan for the whole Basin Basin Plan seeks to rebalance the system  more water for the environment  minimise the impacts on irrigators and local communities MDBA’s task  set the bounds with sustainable diversion limits (SDLs) and work with the states and local communities to implement MDBA only has powers to do part of the reform but ……
  • 7. The Basin Plan The Basin Plan must include:  sustainable diversion limits (SDLs)  water resource plan accreditation  Environmental Watering Plan  Water Quality & Salinity Management Plan  water trading rules  monitoring and evaluation program
  • 8. What are we aiming to achieve? A healthy working Basin with:  critical drinking water needs met  rivers connected to creeks, billabongs and floodplains  healthy ecosystems supporting a wide variety of plants and animals  sufficient flows to flush nutrients and salt through the system  sustainable growth in food and fibre production  long-term confidence for businesses and communities  ‘fit for purpose’ water quality  a free market for trading water
  • 9. What we wish to achieve
  • 10. Four-stage process Information Information feedback formal submission Adoption The The draft The Basin Initial Guide Basin Plan Plan implementation 2010 2011 2012 2019
  • 11. The task Healthy rivers Social and economic Balance | Judgement Environmental science • Macro-economic models • Salt and nutrient export target • Parliamentary enquiries • End-of-system flows • Cost-benefit analysis • 106 hydrologic indicator sites: • Local impacts study - key ecosystem functions - key environmental assets Environmentally sustainable level of take System constraints • River operations • Policy • Physical
  • 12. Decision-making process Environment Implications (science + judgements) • social and economic • define the environment • environmental we want to protect • define what we want Balance it to be (objectives) • determine how much water we need to achieve this — the environmental water requirement (EWR) ↔ Environmentally Sustainable more than sustainable level diversion just a of take (ESLT) limit (SDL) volume
  • 13. Defining the environment  Largely done in the Water Act 2007 (Cwlth)  Key environmental assets – wetlands, floodplain forests, rivers, estuary (Coorong) – largely specific areas, locations – judgements required to define which are ‘key’ assets and how much water they need  Key ecosystem functions – largely ecological processes – primary production, fish migration, triggers for breeding, material transport – judgements required in relating functions to flows  Ecosystem services – not considered yet
  • 14. How much water is needed? Key environmental assets  Too many to assess — over 2000 identified  18 assets selected as hydrologic indicator sites  These sites are: – hydrologically representative – have a good information base  Most sites selected are wetlands or floodplain forests that require high flows largely through overbank flows  High flows make the largest contribution to volume and therefore the largest influence Gwydir Wetlands, north-west of Moree, New South Wales on ESLT Photograph Ray Dawson
  • 15. Hydrologic indicator sites (assets) Lower Balonne River Floodplain System Narran Lakes Booligal Wetlands Lachlan Swamps Great Cumbung Swamp Lower Murrumbidgee Wetlands Lower Darling River System Gwydir Wetlands Hattah Lakes Macquarie Marshes Riverland – Chowilla Floodplain Mid Murrumbidgee Wetlands Coorong, Lower Lakes and Murray Mouth Wimmera River Terminal Wetlands Barmah Millewa Forest Edward Wakool River System Lower Goulburn River Floodplain Gunbower Koondrook Perricoota Forests
  • 16. How much water is needed? Without development
  • 17. How much water is needed? Baseline
  • 18. How much water is needed? SDL scenario
  • 19. Balancing Key 18 hydrologic environmental indicator sites Socio– assets (assets) economic assessment Environmental water Sustainable requirements diversion limits Key 88 hydrologic ecological indicator sites System functions (functions) constraints
  • 20. Environmental water Within each catchment, two components identified:  local requirements to water the assets and functions in that catchment  downstream requirement to water assets and functions in lower parts of the Basin Example — Goulburn catchment  local for the river channel and lower Goulburn Floodplain  downstream — contribution to River Murray assets and functions
  • 21. Social and economic effects Long term, Basin scale  small economic effect Short term, local scale  small communities with high reliance on irrigation will be most at risk Effects of drought at Lake Alexandrina, Milang, South Australia Photo: Jim Donaldson Yarrawonga Weir and Lake Mulwala Photo: Michael Bell
  • 22. How much more environmental water is needed? Basin wide Additional 2,800 GL/y (long-term average) however since 2009 890 GL therefore recovered by 2019 < 1,900 GL to be recovered
  • 23. Indicative rebalancing 2,700 GL/y Interceptions 33% 8,100 GL/y Diversions consumptive Additional environmental water 16,800 GL/y Environment 67% environment 5,100 GL/y Flow to the sea North — 25%, 75% South — 44%, 56%
  • 24. Implementation  Major rural reform — will take time  The Basin Plan as part of a plan for the Basin  Will need a ‘whole of government’ response to minimise impacts on local communities  States and community will be vital part of the implementation through developing and implementing regional Kulcurna area on the Chowilla floodplain before water resource plans environmental watering, 2010 Photo: Corey Brown  Need less focus on the SDLs and more focus on how the extra water is used
  • 25. Strategies for adjustment Irrigators • Commonwealth Current Basin Plan buybacks ($3.1 billion) Interceptions Interceptions • Modernisation program ($5.9 billion) 42% Consumptive consumptive Diversions Diversions Environment Environment 58% Environment Communities/ environment businesses • Lost water = $ lost to towns/regions Flow to the sea • Debt levels high Flow to the sea due to drought • Mitigating impacts — government assistance?
  • 26. Opportunities  Time extension to 2019 provides opportunity  In 2012 the Basin Plan will recommend ‘indicative SDLs’ for each catchment and the Basin  This is within a ‘constrained’ system  Opportunities to address some of these constraints (with potential changes to SDLs)  Opportunity to Kulcurna area on the Chowilla floodplain after progress towards more environmental watering, 2010 Photo Corey Brown contemporary river management
  • 27. Constraints Operational constraints  change river operating rules (currently focused on consumptive water delivery)  optimise storage management Policy constraints  modify storage carryover rules  water sharing plans — alter to better protect environmental water during droughts  remove state-based policies that impact of environmental outcomes Physical constraints  remove/modify infrastructure that impede high flows  purchase easements to allow high flows to be delivered  adopt engineering works and other innovative solutions
  • 28. An adaptive plan • More buybacks Final SDL • Address some constraints Consumptive water • • More modelling & science Environmental works Indicative SDL Gap 890 GL/y 850 GL/y recovered recovered Environmental water 2004 2009 2012 2015 2019 National Water Basin Plan Basin Plan Basin Plan Initiative commenced adopted ‘pause point’ fully enforced SDLs need to be met
  • 29. Summary  Development and implementation of the Basin Plan — major rural reform  Significant reductions in current diversion limits required  Commonwealth investment ($9 billion) should ‘purchase’ all the water required  But still need a whole-of-government response Azure kingfisher. Photo: David Kleinert to minimise impacts on some local communities  Many opportunities to progress towards more contemporary river management by addressing many of the current constraints  This is a ‘journey’ we have just begun

Hinweis der Redaktion

  1. Been in the role since middle of the year.Acknowledgement of Rob Freeman (who is Chairing the Conference)
  2. Current water use/year:Interceptions – 2740 GL (9%)Diversions – 10940 GL (33%)Environment – 14000 GL (43%)Flow to sea – 5100 GL (15%)
  3. The Basin Plan is the next step on the journey.The Water Act requires the plan provide for “the integrated management of the Basin’s water resources” in a way that optimises economic, social and environmental outcomes. In other words, water management in the Basin, like the rivers themselves, wont stop at a state border.The Water Act is specific in setting out 15 elements that must be included in the Basin Plan.These include: limits on the amount of water use (both surface water and groundwater), called sustainable diversion limits requirements that state water resource plans must comply with a plan to coordinate environmental water use a water quality and salinity management plan rules about trading of water rights a monitoring and evaluation program.
  4. What are we trying to achieve with the Basin Plan:We want a healthy working Basin – not a return some ‘natural’ or pre-European state. The health is important, but the working is also important. Key outcomes for the Basin Plan include: maintain water for human consumption in times of drought rivers regularly connected to creeks, billabongs and floodplains healthy ecosystems and functions supporting a wide variety of plants and animalsan environment that supports food and fibre production and provides long-term confidence for businesses and communities water of a quality suitable for drinking and other uses, sufficient flows that flush salts and excess nutrients from the Basin a free market for trading water with clear, consistent rules.
  5. One of the main things I have learned since arriving at the Authority is that environmental water needs and use is complicated. In managing national parks it is not as simple as just fencing off a forest. It requires active management.It is exactly the same for environmental watering. It is not just a case of acquiring a volume of water for the environment from current irrigation users.As shown on this slide, the wetlands and rivers of the Basin require a variety of flows with varying frequencies. These range from low flows and pulses within the river channel, to overbank flows of varying sizes that water different areas of the landscape.It is also important to realise that it is not possible to manage these sites in isolation. The Basin’s rivers, wetlands and floodplains operate as a system, and therefore must be managed as a system.
  6. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  7. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  8. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  9. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  10. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  11. Objectiveto develop and implement an integrated water resource Plan for the whole Basin Basin Plan seeks to rebalance the system:more water for the environment, butminimise impacts on irrigators and local communitiesMDBAs task:set the bounds (SDLs)work with the States to implement But MDBA only has powers to do part of the reformmitigating social and economic impacts role of Governments
  12. Changes to water use will have social and economic affects in the Basin. The Authority has listened to the views, hopes and concerns of people living in the Basin.It has also commissioned over 16 studies, as well as drawing on numerous existing studies, in order to better understand the potential social and economic affects, The main findings of these studies has been that over the long term and at a Basin wide scale, the economic affects of the Basin Plan will be minimal.However, there will be a number of communities that will be particularly sensitive to changes in water use, particularly small communities with a high reliance on irrigation.The extent of these effects will be dependent on many other factors, as water availability is one of these factors. It will be dependent on commodity prices, the Australian dollar, and also where and what type of water is bought and the extent to which Australian farmers continue to innovate and adapt to changing circumstances.Importantly, failure to act and achieve sustainable water use will have negative social and economic affects.
  13. I would like to emphasise that these numbers represent our current thinking and knowledge, and we are currently undertaking further modelling and analysis to look at volumes both above and below 2,800 GL
  14. Current water use/year:Interceptions – 2740 GL (9%)Diversions – 10940 GL (33%)Environment – 14000 GL (43%)Flow to sea – 5100 GL (15%)