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A PAPER FROM THE URBAN IMPERATIVE [Table of contents] [Buy the book] [PDF version] Community-driven stewardship of an Australian government protected area PAMELA PARKER AND MICHAEL PUNTURIERO Pamela Parker is Program Director of the Australian Landscape Trust and a Conservation Biologist with the Chicago Zoological Society. She is based in Renmark, South Australia. Michael Punturiero is General Manager of Mystere Orchards, which borders Calperum Station, and chairs Community Land Management, Inc. He is based in Cooltong, South Australia. Citation: This paper may be cited as: [Authors.] 2005. [Article title.] In Ted Trzyna, ed., The Urban Imperative. California Institute of Public Affairs, Sacramento, California. 1. INTRODUCTION At Calperum and Taylorville stations in South Australia, a combination of fortuitous circumstances has provided an unusual opportunity to link local community needs and conservation requirements in a badly degraded but biologically important ecosystem. The elements that have come together are community commitment, private-sector support, government policy, political leadership, and the willingness of all parties to take risks. Calperum and Taylorville stations are north of the Murray River near the town of Renmark, which has a population of around 8000 and is about 250 km by road from Adelaide, South Australia’s state capital and largest city, and 750 km from Melbourne. ("Station" is an Australian term for a large cattle or sheep ranch or farm.) The dominant natural ecosystem is mallee, a form of semiarid woodland found only in Australia that contains a remarkable and largely endemic biodiversity. Mallee is dominated by several species of multi-stemmed Eucalyptus and has other plants and animals of national significance. More than 80 percent of Australia’s mallee has been cleared in the past century and a half. Calperum and its environs have the largest remaining expanse of intact mallee in Australia. Wetlands are another important ecosystem within Calperum Station. In 1987 the 30,600-ha Riverland Wetland was designated a Wetland of International Importance under the 1971 Ramsar Convention (Ramsar). 2. HISTORY In the early 1990s, environmental challenges in the lower Murray Darling Basin of South Australia commanded the attention of many Australians. This basin covers about a seventh of Australia and accounts for around 80 percent of the country’s inland agricultural production. Like many dry areas of the world that have irrigated agriculture, this region has been experiencing large-scale environmental change. This includes loss of biodiversity, declining quality and availability of water, rising saline ground water, altered patterns of rainfall, climatic warming, diminished productivity, and the legacy of past unsustainable uses of natural resources. Collectively, these changes threaten the future of land in primary production and land in the conservation estate, as well as the quality of life of the community. Along with several other Australian and American organizations (see below), the Chicago Zoological Society has played a key role at Calperum Station. CZS operates one of the world’s premier zoos and has been an international leader in relating zoos to conservation. The Society started investing in Australian biodiversity with a land acquisition in 1971, and its staff and volunteers supported activities of Australian conservation organizations throughout the 1980s and 1990s. This included assistance in research and monitoring, and expertise in care of infrastructure in semiarid protected areas. In 1992, CZS was engaged by the Australian government to review the status of its biosphere reserve program. Biosphere reserves are areas that are internationally recognized within the framework of UNESCO’s Man and the Biosphere Programme. They consist of a core protected area, or cluster of such areas, a buffer zone, and an outer transition area (UNESCO). The review reported a problem that is widespread internationally: The conservation functions of biosphere reserves are generally well-served, because they fit comfortably within the framework of the legislation, culture, and budgets of governmental agencies that manage protected areas. However, the more innovative components of biosphere reserves – engagement of the local community and pursuit of sustainability – are often difficult or impossible to implement, largely due to the form of land tenure outside the core. In 1991, CZS, with the support of the McCormick Foundation, approached the Australian government with a challenge gift toward the purchase of Calperum Station (approximately 250,000 ha). This area was proposed to serve as an outer zone of an established biosphere reserve, Danggali Conservation Park, so the complex could function as a "full-service" biosphere reserve with core, buffer, and transition areas. Calperum’s land tenure as a pastoral lease allowed for a variety of activities incompatible with a strictly defined, conventionally managed protected area. In 1992, the Australian government contributed the additional funds required to purchase Calperum Station. CZS carried out the mechanics of the purchase, converting the land title into a trust deed specifying the purpose of the purchase. The Australian government accepted the deed with its attendant responsibilities. Calperum Station was cleared of sheep in 1993, and a formal partnership commenced between the Australian government and CZS to deliver the program. At about this time, The Ian Potter Foundation joined as a third partner. As the Potter Foundation’s involvement deepened, it chose to facilitate its work by establishing a new organization, the Australian Landscape Trust (ALT). Unlike the foundation, ALT was designed to engage directly in managing a program and appointing staff. Next, the government and the private sector explored how to merge their cultures, discharge responsibilities for land and wildlife, restore a degraded property, engage the community, and finance the program. The traditional national park management structure is "top down." The cultural elements required for building community capacity are "bottom up," which is the method of service delivery used by the private-sector professionals in the program. Staff from government and the private sector found it difficult and often impossible to merge these operating styles. This impasse was broken in 1998 by the Australian Environment Minister, Robert Hill, who decided to create a buffer between the private and public sectors while retaining the government’s firm control over publicly owned land. The minister enabled ALT to contract for the management of Calperum. The contract specified standards of care, thus safeguarding the legal responsibilities of government. ALT served as guarantor of performance and advisor to community participants. The initial five-year contract provided for an annual review by a team composed of representatives of the government and ALT, and an independent chairman agreed to by both parties. However, based on performance during the first five years, the formal review has been dropped. The length of the contract provided sufficient certainty for community volunteers to engage fully in the program at a personal, emotional level. Minister Hill’s investment thrived. ALT, in partnership with the Australian government, purchased adjacent land in need of protection, Taylorville Station (approximately 100,000 ha). The program was endorsed by a succeeding Minister, Dr. David Kemp. 3. PARTNERS The partners in this project have included a local community, brave politicians, government staff, and business leaders, as well as Australian and American conservation and philanthropic organizations. Pivotal individuals have been:
Investors in this program shared concern about the future of the Murray Darling Basin, its biodiversity, and its people. CZS and ALT were committed to developing models of sustainability that achieve security for regional biodiversity over the long term. Citizens of the area aspire to maintain their quality of life, their livelihoods in irrigated horticulture, and their environmental amenities. The Australian government seeks to achieve goals in conservation across multiple land tenures. Members of Australian civil society wish to contribute to community capacity and the democratic process so people can support environmental policies that address long-term needs. These partners also share values, goals, and a culture of accomplishing tasks. ALT and CZS brought professional skills and networks to the program, as well as monetary resources. The local community contributed leadership, vision, skills, long-term commitment, and many volunteer hours. The Australian government brought legitimacy, financial and other resources, supportive policy, willingness to accept risks, and political protection for a program often under siege, sometimes for no reason other than that it was driving change. The business and philanthropic community contributed leadership, financial resources, management direction, political savvy, experience, dedication, and accountability. The good fortune of appropriate timing and cultural readiness was another significant asset – the program probably would not have succeeded if it had started before 1990. 4. MANAGEMENT STYLE AND COMMUNITY INVOLVEMENT Empowering volunteers To give scope to the biosphere reserve program, land tenure was needed that did not invoke statutes for conventionally managed protected areas. In addition, the culture of the professionals needed to change: Rather than serving as traditional guardians of the land and enforcers of centrally established policies, staff needed to support the involvement of community members in the areas of greatest concern to individual volunteers. Staff members do this by serving as cheerleaders, coaches, and teachers, and by responding to the priorities of volunteer leaders. Many such leaders are not immediately recognizable as such, so the role of staff is to facilitate leadership and open up new networks for volunteers. The working style of staff must blend in with the culture of volunteers. This often means working evenings, weekends, and holidays, just as volunteers do. John Davidson, in discussing community involvement in Britain’s Groundwork organization at The Urban Imperative workshop, referred to a version of Sherry Arnstein’s (1969) widely used Ladder of Citizen Participation:
This analysis resonates with experience in implementing the biosphere reserve program in South Australia. To achieve meaningful, long-term involvement of the community, enfranchisement must take place at Level 7. Beyond that, the program must continually push toward Level 8 until community members are able to create and carry out independent programs on other land tenures – the performance measure of cultural change. In the past, the management of most public protected areas was incompatible with community involvement much beyond Level 3. Constraints were due to statutory and other factors. An example of a Level 3 activity is when park managers invite community volunteers to help plant trees that are provided on site at a particular time and place. At Level 7, this activity starts with a collective decision to undertake revegetation of a particular area. Community members with skills and interest in revegetation join staff in researching species that could be expected to grow in the targeted area and in determining the cash cost of the project. A team would be formed to collect seed from appropriate sources, germinate them, propagate seedlings, choose the most effective ways of planting in the site to be revegetated, and provide ongoing care. The team would then need to design and carry out a monitoring and reporting program to provide guidance for the future. These contrasting approaches, those at Level 3 and those at Level 7 and beyond, attract volunteers with different interests. Both types of volunteers must be served. Such principles of community involvement, which were explored throughout The Urban Imperative workshop, focus our collective analysis on the "technology of investment" in building and maintaining essential linkages with those who care about protected areas and their on and off-site benefits to society. Political support for protected areas is not the least significant byproduct of these investments. Mechanics of delivery Calperum and Taylorville stations are both "pastoral leases," a designation under South Australian state law. As the leaseholder, the national Australian government provides protection under national law that is more effective than the state government can offer. Pastoral use of mallee country usually results in degradation. This is due, in part, to the sale price of land. Capital costs of land exceed considerably the income the land can produce from grazing sheep. The requirements of servicing debt reinforce the too-familiar cycle of increasing stocking rates that deplete vegetation palatable to stock. Loss of this vegetation decreases capacity of the land to support grazing, and drives loss of biodiversity and degradation of the landscape. The area of Calperum and Taylorville stations remains subdivided into fenced paddocks, a legacy of pastoral use. However, the paddocks have now become units of conservation management. Each paddock is available for "adoption" by a community volunteer, a family, a group of friends, a service club, or a special-interest group. Each paddock has its own list of tasks to be accomplished annually. These tasks are determined by the nature of the land and its condition. Flood-plain wetlands have different needs from dry mallee areas. Examples of tasks are road and fence maintenance, feral animal and weed control, biological surveys, species restorations, landscape repair, and revegetation. Some tasks fulfill contractual requirements; others are initiated by volunteers. Not surprising is some friendly competition among those caring for individual paddocks. In 2002, volunteers in land management alone donated over 14,000 hours. Some volunteers are retired from paying jobs, but spend normal working hours at Calperum Station on many days. Others still in the work force participate on weekends, evenings, and holidays. Many volunteers have been with the program for five years or more, some since the program commenced in 1993. The professional staff at Calperum and Taylorville stations are broadly trained biologists and experienced land managers. Community members interested in land-management or conservation issues are always welcome to join staff in their open-plan office. Equipment such as computers, vehicles, and live traps are used on an equal basis by staff and volunteers. However, staff must ensure that the government contract is met, conditions are safe, and skills are transferred from staff to volunteers. Restoration of the lakes in the Ramsar wetland has attracted many volunteer hours. Two lakes have been returned to conditions that once again are able to support waterfowl: over 24,000 birds used them in 2002. In 1992, when Calperum Station changed hands, the lakes were virtually sterile due to their exclusive use for irrigation water storage. Other activities of volunteers include revegetation, monitoring bird populations, and working with young people in weekend camps that immerse city dwellers in the natural history of the region. Community Land Management, Inc. One of the most exciting of the community initiatives has been the establishment of Community Land Management, Inc. (CLM). This group was formed by committed local community leaders who have driven aspects of the program for over a decade. Led by Michael Punturiero, a citrus grower, they see themselves as investors. They are codifying their knowledge on everything from fire prevention and pest control to revegetation and habitat protection. This information is being assembled in notebooks that will allow newcomers to learn and others to refresh their skills. Community Land Management, Inc. also offers its services to other communities with similar goals. 5. REVEGETATION Revegetation of overgrazed land has been a key goal. The Murray River floodplain was part of an overland stock route for sheep from western New South Wales to markets in Adelaide in the late 1800s. Later, the floodplain was a mainstay for grazing because of the presence of permanent water. The legacy of high grazing pressure is reflected in examples of progressive desertification, soil loss, soil compaction, loss of palatable species, and – in places – gully erosion. Because of a harsh and erratic climate, revegetation efforts carry a high risk of failure if rains do not follow the planting. Rainfall averages 230 mm per annum and evaporation rates are high. Droughts are frequent. Climate change indicators suggest that winter rains are diminishing, average annual rainfall is diminishing, temperatures are rising, and hence evaporation is rising also. Revegetation is labor-intensive, and volunteer care is essential to its success. Fenced plots are planted with a variety of species that are likely to have been found in the area as a means of restoring diversity, especially of highly palatable species that have disappeared. The plots are small enough to be watered by hand during dry years and allow natural recruitment outside the plots when the rains happen to come. Seed is collected from plants in the general area, dried, cleaned, sorted and propagated. Laser-leveled contours are scored into the earth and plants are put into the sides of the troughs. Wind contributes more soil. Rain collects in the troughs. Eventually, with luck, growing conditions are enhanced. 6. FACILITIES Calperum Station has offices, a laboratory, and accommodation for residential professional staff and long-term volunteers. There are camping facilities, and a former woolshed hosts lectures, workshops, and social events. Students of all ages, researchers, educators, participants in government employment programs, vulnerable young people with community service obligations assigned through the judicial system, handicapped people, and many other groups have been accommodated at Calperum Station and have contributed to its programs. Another major achievement has been construction of the McCormick Centre for the Environment, a state-of-the-art public facility for environmental education built with foundation and national government funds. Local government also contributed to it as an investment in community participation in good management of natural resources. 7. PERFORMANCE MEASURES Many performance measures have been used for this program. They include hours contributed, tasks accomplished, increased species diversity, discovery of new taxa, prospering wildlife populations, hectares revegetated, discovery of new knowledge, and completion of specific projects. However, the most significant outcome is education, specifically the transfer of skills from ALT and CZS professional biologists and land managers to community volunteers through "learning by doing" and adaptive management. Thus empowered, trained volunteers have helped others undertake conservation work outside this program. Another very significant outcome is the founding of Community Land Management, Inc., which is already involved in projects some distance from Calperum and Taylorville stations and is beginning to work on private land as well. Core to the success of this program is the good faith demonstrated by the Australian government in providing ALT with a second five-year management contract. The ultimate test will be the ten-year review of this inclusive approach to conservation on public land, and outreach to those who manage private land. When that ten-year review is in hand, the partners will know whether they should invest in similar opportunities elsewhere. We hope they are not discouraged. 8. REFERENCES ACT. "Australian Landscape Trust." Australian Landscape Trust, http://austlandscapetrust.org.au. Arnstein, Sherry R. 1969. A ladder of citizen participation. Journal of the American Institute of Planners 35:4: 216-224. CLM. "Community Land Management, Inc." Community Land Management, Inc., http://communitylandmanagement.org.au. Pearce, F. 2003. A greyer shade of green. New Scientist 21:41-13 (June 2003). Ramsar. "The Ramsar Convention on Wetlands." The Ramsar Convention Secretariat, http://www.ramsar.org. UNESCO. "The MAB Programme: People, biodiversity, and ecology." Man and the Biosphere Programme, UNESCO, http://www.unesco.org/mab.
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