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Introduction

In a world where biodiversity is threatened and declining, the ACT remains a 'good news story' in terms of conservation outcomes. In 2007, the ACT was the only Australian jurisdiction to receive a World Wildlife Fund for Nature (WWF) triple-A rating for its nature conservation estate in terms of its rated comprehensiveness, extent and standard of management.

The ACT Nature Conservation Strategy 2013–2023 (the Strategy) builds on the achievements of the original 1997 strategy, which made significant progress in terms of enhancing the reserve estate, managing the recovery of threatened species and ecological communities, and putting in place frameworks to manage ecological threats to our biodiversity and aquatic ecosystems.

Building on these strong foundations, the new Strategy aims to enhance the resilience of natural areas at wider 'landscape scales'. The Strategy provides direction on how to better integrate and extend conservation efforts beyond reserves to include natural areas across a range of land uses and tenures, and cross-border, to ensure ecosystems remain healthy and well-managed. This approach will provide the best chance for natural ecosystems to adapt to expected longer term shifts in climate. Landscape-scale conservation will benefit from the broader involvement of rural landholders on whose properties significant remnants of native vegetation still exist.

A resilient, well-managed environment supports better health and wellbeing in our community. The Strategy has a range of actions to improve the opportunities for ACT residents to enjoy parks, reserves and open space as places for recreation, amenity, self-renewal and education. Embracing the idea of the 'Bush Capital', the Strategy suggests a range of programs to broaden the opportunities for our native biodiversity to flourish in urban areas, but in ways that will also provide benefits to people in a changing climate, such as providing more shade to cope with higher temperatures. The Strategy recognises that decisions about land use are made under the Planning and Development Act 2007.

The Strategy will continue to support the ACT's diverse volunteer base. Volunteers put in tens of thousands of hours of unpaid work every year to help manage the ACT's natural areas. Looking into the future, it is particularly important to engage a new generation of younger Canberrans in conservation by encouraging and supporting programs for nature-based learning in the ACT's natural areas.

Overview

The ACT Nature Conservation Strategy 2013–23 outlines a vision for nature conservation in the ACT over the next decade for 'biodiversity rich, resilient landscapes stretching from the inner city to the mountains, where well-functioning ecosystems can meet the needs of people and the environment'.

The ACT's large reserve estate encompasses 54% of the Territory's total area. Large, well-connected reserve areas to the south and west of Canberra have ensured upland ecosystems are already well protected. Pressures on the ACT's natural ecosystems remain greatest in the lowlands, where reserves are inadequately connected in some areas and native vegetation remnants on public and privately managed land are 'ecologically isolated', remaining vulnerable to threats including climate change (see Map 1).

The Strategy aims to strengthen the key foundational elements—connectivity, resilience, community capacities—of a long-term approach to build the adaptive capacity of natural ecosystems and people to a changing climate.

To more effectively manage biodiversity and native habitat within and between areas currently protected in the reserve system, the Strategy outlines a plan to create larger, more resilient landscapes across a range of tenures including urban areas, open space, reserves, rural lands and riverine corridors.

The Strategy supports continued implementation of the Namadgi and Tidbinbilla plans of management to ensure upland areas remain in good condition, and supports ongoing monitoring to understand the impacts of climate change on climate sensitive alpine ecosystems. Given the most significant conservation gains in the ACT can be achieved in lowland areas, the Strategy will focus on better managing threats to lowland reserves and connecting these areas with well-managed native vegetation remnants outside these areas.

Managing ecological values across different tenures in this way is consistent with the 'whole of landscape' approach that is becoming the standard for conservation planning across Australia (see Box 6).

The Strategy has identified broad focal landscapes (see Box 1 and Map 2) in which robust conservation practices and climate change science will be used to identify where to prioritise enhancing habitat quality, extent and connectivity of native vegetation, and control weeds and pest animals to support restoration.

Map 1: Nature reserves in the ACT vary in their ecological values. Namadgi, the Cotter and Tidbinbilla were created for conservation, wilderness and catchment values. Lowland nature reserves were largely established for their landscape and amenity values (protecting the hills, ridges and buffers as prescribed under the Territory Plan). Post 1995, significant areas such as Jerrabomberra Wetlands, Mulligans Flat and a number of native grassland sites were reserved to protect a variety of threatened species and ecological communities. Despite these efforts, large remnants of nationally threatened box-gum woodland and other modified woodlands remain unprotected and unmanaged across public and private land. The Strategy will focus on better managing these remnants and other degraded areas through the landscape restoration approach outlined in Map 2.

Map 2: The ACT Government has used the most up-to-date conservation data to identify broad 'landscapes' in which more targeted investment may contribute to conservation outcomes at the landscape scale. Landscapes are a mix of reserves, rural leases and other tenures that contain significant native vegetation remnants with potential for restoration and connection. The Strategy identifies four landscape types where more fine-scale planning and on-ground actions will be guided by specific objectives for each landscape (see Section 2). Note: the terms 'rural' and 'urban' landscapes are general descriptors of the predominant current landuse within the landscapes. The use of these terms does not imply that land is reserved for these purposes, or that other landuses are not appropriate within these areas. The areas may change over time as decisions about landuse change are made under the Planning and Development Act 2007.

Table 1: Nature conservation strategy approach

Vision: “Biodiversity rich, resilient landscapes stretching from the inner city to the mountains, where well-functioning ecosystems can meet the needs of people and the environment”

Outcome 1: Native vegetation and biodiversity is maintained and improved.

Outcome 2: Landscapes are more resilient, including to climate change.

Outcome 3: Community health and wellbeing is increased through use and appreciation of natural areas and 'green assets' in urban areas.

Note: progress of outcomes will be measured against targets – see Table 2

Strategy 1: Enhance habitat connectivity and ecosystem function

Actions

1. Develop baseline information on landscape function.
2. Undertake fine scale planning for habitat connectivity.
3. Enhance regional connectivity.
4. Assess conservation investment opportunities across public and privately managed lands in the ACT.
5. Fund priority landscape actions.

Strategy 2: Manage threats to biodiversity

Actions

1. Implement ACT Weed Strategy (2009–19).
2. Implement Pest Animal Management Strategy (2012–22).
3. Manage total grazing pressure on ecosystem function in reserves.
4. Establish and implement ecologically appropriate fire regimes.
5. Implement improved catchment management to support aquatic ecosystems.
6. Develop and implement a migratory species action plan.
7. Develop and implement an ACT soils strategy.

Strategy 3: Protect species and ecological communities

Actions

1. Manage the protected area estate.
2. Develop, implement and review action plans for threatened species and communities.
3. Restore and manage priority landscapes.
4. Identify biodiversity refugia under drought and climate change.
5. Monitor five priority ecosystems most vulnerable to threats.
6. Implement captive breeding programs and translocation programs.
7. Propagate and translocate threatened plants.
8. Establish seed banks and seed orchards.

Strategy 4: Enhance biodiversity value of urban areas

Actions

1. Manage impacts of urban development on biodiversity.
2. Manage urban open space.
3. Enhance connectivity through urban areas.
4. Manage the urban edge.
5. Support urban landcare and ParkCare activities.
6. Manage and enhance green assets and infrastructure.

Strategy 5: Strengthen community engagement

Actions

1. Support greater community involvement through volunteering.
2. Enhance and promote the use of citizen science.
3. Implement targeted community education campaigns on priority issues.
4. Build Indigenous engagement in the management of natural resources.
5. Encourage the involvement of youth in nature conservation.
6. Support appropriate recreational and tourism use of natural areas.
7. Enhance key partnerships across government, community and the private sector.

1. Background

1.1 Purpose of the Strategy

The Nature Conservation Strategy (the Strategy) is a document for all land management, planning, business and community sectors in the ACT to guide a coordinated and integrated approach to nature conservation. The Strategy will help guide future management of the Territory's open spaces, rural areas, urban areas, riverine corridors and nature reserves, and guide investment of funding and resources.

The Strategy recognises that many components of the original 1997 Nature Conservation Strategy remain relevant and contemporary, and several incomplete actions or follow on actions have been retained in the Strategy. This approach ensures continuity and commitment to long term actions such as managing the recovery of threatened species.

However, the Strategy recognises that the strategic context for managing biodiversity in the ACT has shifted. Assisting the ACT's biodiversity to adapt to a changing climate, as well as addressing gaps in management of native vegetation remnants outside of reserves, requires a number of new conservation approaches to be emphasised. A whole of landscape planning approach and a stronger focus on enhancing ecosystem resilience to better protect threatened species are two examples of these new approaches.

1.2 Context

The ACT has established a comprehensive reserve network protecting areas of high conservation value. Today, 54% of the ACT is a part of the reserve network, a much higher proportion of reserved land than in any other state or territory. All ACT ecosystems and habitats of all threatened species are represented in the reserve network.

The ACT is situated in two bioregions – the South-East Highlands bioregion and the Australian Alps bioregion.
The southern half of the ACT is in the Australian Alps bioregion. The higher land, above 750 metres, retains nearly all its natural vegetation and lies almost entirely within Namadgi National Park and Tidbinbilla Nature Reserve. The sub-alpine, montane and wet forest communities that occupy this part of the ACT are part of a much greater continuous network of mountain and alpine parks that includes Kosciuszko National Park and the Victorian Alps. The scale and connectivity of this reserve network does much to protect the ecosystem function and plant and animal diversity of the ACT's higher lands.

Table 2: Outcomes and associated targets

Outcome 1: Native vegetation and biodiversity is maintained and improved.

Targets

• The overall extent of lowland native vegetation across the ACT will be maintained, and the condition of lowland native vegetation communities will be improved.
• A measurable increase in connectivity between patches of native vegetation, non-native vegetation in urban areas, and riverine systems.

Outcome 2: Landscapes are more resilient, including to climate change.

Targets

• A reduction in threats to biodiversity from weeds, pest animals and inappropriate fire regimes.
• Impacts from threatening processes, and climate change refugia in the ACT, are better understood and appropriately managed.

Outcome 3: Community health and wellbeing is increased through use and appreciation of natural areas and 'green assets' in urban areas.

Targets

• An increase in the area of land under volunteer effort (by ParkCare, 'Friends of ' or other volunteer groups) in management of the Canberra Nature Park.
• Ten areas of conservation significance (including areas outside reserves) 'adopted' by ACT schools or higher learning institutions as sites for nature-based education.
• Increased community understanding of, and support for, the protection of the ACT's biodiversity.

The remaining areas of the ACT are lower in altitude and form part of the South-East Highlands bioregion. Around 60% of the ACT's lowlands have been cleared. Key vegetation remnants have generally been retained as conservation reserves. However, ongoing urban expansion has fragmented these remnants and led to deterioration in their condition. Weed and exotic animal invasion, fire management and recreation pressures are significant factors. Climate change is likely to impose additional pressures.

Long-term monitoring of ACT lowland birds, reptiles and mammals has revealed a dramatic decline in both wildlife abundance and species diversity. For instance, the yellow-footed antechinus (Antechinus flavipes) and brown antechinus (A. stuartii) marsupial mice were respectively commonly and occasionally recorded on Black Mountain and Mt Ainslie in the 1970s. They have not been recorded in these areas since the early 1990s.

The 2011 ACT State of the Environment (SoE) report recognised the key threatening processes impacting upon the ACT's biodiversity as climate change impacts, changed fire regimes, pest impacts, and development impacts such as urbanisation and roads. The report noted a small increase in the numbers of threatened plant and animal species in each new reporting period.

1.3 Evidence base for the Nature Conservation Strategy

The Strategy draws upon a wide range of policy, science and research based evidence. Some examples of the science informing the Strategy include:

• data sets for vegetation communities and threatened species collected and updated by the ACT Government for a number of decades and incorporated in action plans for threatened species and ecosystems
• the most fine-scale habitat connectivity analysis in Australia, where canopy cover and connectivity linkages are mapped at 15 square metre resolution (see ACTmapi)
• technical reports on the state of conservation of areas or ecosystems in the ACT, such as the vegetation and habitat survey of the Murrumbidgee River (Johnson et al, 2009)
• investigations by the ACT Commissioner for Sustainability and the Environment (CSE), such as the investigations into Canberra Nature Park (CSE, 2011) and lowland native grasslands (CSE, 2009). The most recent SoE report (2011) provided critical context about current status and threats to biodiversity in the ACT
• action plans including the Woodlands for Wildlife: ACT Lowland Woodland Conservation Strategy (Action Plan No. 27) and the ACT Lowland Native Grassland Conservation Strategy (Action Plan No. 28)
• analysis and recommendations facilitated by the CSIRO Climate Change Adaptation Flagship, outlining ACT priorities for adapting biodiversity to climate change (Doerr et al, 2011)
• analysis from the NSW Government identifying areas where management of native vegetation will optimise regional biodiversity benefits (Summerell et al, 2011)
• expert advice during formulation of the Strategy from the ACT Natural Resource Management Advisory Committee, ACT Flora and Fauna Committee, ACT Natural Resource Management Council and the ACT Climate Change Council.

1.4 The nature conservation framework in the ACT

The Canberra Plan – Towards our Second Century, released in 2008 (ACT Government, 2008), establishes the priority of “a sustainable future which aims to ensure Canberra is a fully sustainable city in which developments are environmentally sensitive, to protect natural assets and to respond to climate change”.

The ACT's legislation, policy and planning framework aims to meet this priority and consists of a range of legislation, strategies and plans which guide conservation actions and development in the ACT. The strategic framework includes the ACT Nature Conservation Strategy, action plans for threatened and endangered species, pest and weed strategies, plans of management for reserves, and the ACT Planning Strategy.

The legislative framework for conservation and environmental protection in the ACT comprises the:

• Nature Conservation Act 1980, the primary ACT law for the protection and management of native plants and animals; the identification and protection of threatened species and ecological communities; management of national parks and nature reserves; and the conservation of the ACT's natural resources. The Act provides for a nature conservation strategy, species and communities action plans, a Conservator of Flora and Fauna, and the Flora and Fauna Committee.
• Environment Protection Act 1997, which promotes the protection, restoration and enhancement of the environment as well as promotion of the principles of ecologically sustainable development.
• Pest Plants and Animals Act 2005, which lists pest plants and animals and provides for development of pest animal and pest plant management plans.
• Fisheries Act 2000, which provides for the development of fish management plans, declarations of noxious fish and provides for fishing licencing.
• Planning and Development Act 2007, which provides important underpinnings for environmental protection and requires plans of management for reserves, land management agreements on rural land and environmental impact assessment for development.
• ACT Heritage Act 2004, which establishes a system for the recognition, registration and conservation of natural and cultural heritage places and values.
• Tree Protection Act 2005, which identifies and protects significant trees in the ACT's urban environment, and can be applied during urban design and planning phases for new urban developments.

Existing plans of management, action plans and strategies for weed and pest animal management provide detailed actions which underpin and implement many components of the Strategy (see Appendix 2). As such, the Strategy provides an overarching framework under which existing strategies and plans will continue to function.

1.5 Challenges and opportunities

Since self-government in 1988, the ACT Government has made significant efforts in the conservation of biodiversity in the ACT informed by the 1997 Nature Conservation Strategy and the Nature Conservation Act 1980. The ACT community has significantly contributed to the conservation of biodiversity.

Despite government and community efforts, and the significant level of reservation of ecosystems in protected areas, a number of challenges for the conservation of biodiversity remain.

The 2011 Australian State of the Environment Report notes that land clearing, and grazing pressures from domestic, feral and native species, are likely to increase. Pressures from urban development on biodiversity must also continue to be managed (see Box 2). More species are likely to be threatened in the future by reductions in the numbers of their populations, size of range and numbers of individuals. Pressures from landscape scale factors, particularly weeds, fire, fragmentation of habitat, diseases and hydrology, are also likely to dramatically increase in the future.

The report indicates that climate change is likely to magnify the effects of existing pressures many fold in coming decades.

While these are significant challenges, the ACT is well placed to meet these challenges:

• The level of reservation of ecosystems in protected areas provides the critical building block on which to build further conservation efforts.
• The ACT has significant scientific and research institutions located within its boundaries and makes good use of their expertise to drive innovative approaches to conservation.
• The size of the ACT and its governance structures mean coordination and integration across government and cross border is simpler than in other jurisdictions.
• The ACT has an engaged and informed citizenry who actively participate in conservation of biodiversity and citizen science.

The role of the Strategy is to provide for the identification of areas that are important for conservation and, in particular, to provide the landscape context in which conservation and development occurs. The Nature Conservation Act 1980 provides for the identification and listing of threatened species and communities and for the development of action plans, which then inform the development and approval process under the Planning and Development Act 2007.

The Australian Government's central piece of environmental legislation, the Environment Protection and Biodiversity Conservation Act 1999 (the EPBC Act), provides a legal framework to protect and manage nationally and internationally important flora, fauna, ecological communities and heritage places — defined in the EPBC Act as matters of national environmental significance. The ACT Government has a responsibility to ensure no significant impacts occur on matters of national environmental significance in the ACT. Actions identified at Strategy 2 help meet this obligation.

Box 2: Nature conservation and urban development

The Planning and Development Act 2007 is the ACT legislation that makes decisions about land use planning and the balance between nature conservation and development.

The ACT Planning Strategy provides the broader planning framework through which nature conservation and development needs can be met in a sustainable city. Ecologically sensitive planning approaches, such as urban intensification, will allow for continued urban and economic growth that does not unduly impact upon nature conservation.

1.6 National policies

The ACT's policies complement national strategies and plans. The conservation approaches identified in this Strategy align closely with Australia's Biodiversity Conservation Strategy 2010–30 (the National Strategy). The National Strategy sets the direction for biodiversity conservation across Australia over the next decade. The ACT Strategy reflects the intention of the National Strategy to ensure our biodiversity is healthy, resilient to climate change and valued for its essential contribution to our existence.

The Strategy links to a number of important and complementary strategies and plans at the national level. The Australian Native Vegetation Framework 2012 seeks to guide and coordinate legislation, policies, programs and activities related to native vegetation management throughout the country. The National Wildlife Corridors Plan (see Box 3) will create a national framework to allow recognition of corridors at different scales, facilitating cooperation and attracting strategic investment.

Box 3: National Wildlife Corridors Plan

In 2012, the Australian Government released the National Wildlife Corridors Plan. The intent of this plan is to restore and manage ecological connections in the Australian landscape by supporting cooperative, voluntary land management action by groups of land managers. This may include farmland, urban land, conservation reserves or Indigenous lands, and may be local, regional or continental in scale.

The Strategy includes actions to support corridors at various scales, and some of these may be nominated as 'National Wildlife Corridors' that are recognised under the plan. The National Wildlife Corridors Plan identifies the Great Eastern Ranges Initiative as an area that could be listed as a National Wildlife Corridor.

The Great Eastern Ranges Initiative runs the length of the Great Dividing Range from Victoria to Queensland. The ACT participates in the Great Eastern Ranges Initiative through the Territory and Municipal Services Directorate's participation in the Australian Alps Inter-Governmental Agreement and Kosciuszko to Coast Working Group.

A number of new and already established programs will provide significant sources of potential funding for nature conservation activities across the ACT over the course of the Strategy. These include the Biodiversity Fund, Caring for our Country and the Carbon Farming Initiative (see Box 4).

Box 4: Possible funding sources for landscape restoration

Biodiversity Fund: Providing $946 million (nationally) over its first six years, the Australian Government Biodiversity Fund aims to support land holders and land managers to undertake projects that establish,
restore, protect or manage biodiverse carbon stores.

Caring for our Country: Providing $2.2 billion (nationally) from 2013–14 to 2017–18 to protect and conserve biodiversity and for the adoption of sustainable farm practices.

Carbon Farming Initiative: An Australian Government scheme to help farmers, forest growers and land managers earn income from reducing their greenhouse gas emissions through changes to agricultural and land management practices. Subject to resolution of the required contractual arrangements that would apply within leasehold systems, there are potential options for ACT land managers, including government, to participate in the Carbon Farming Initiative.

The ACT sits inside a regional landscape and is working with adjacent regions to ensure that conservation recognises local, regional and national objectives (Map 3).

Map 3: Shows some of the many partner organisations the ACT Government will continue to engage and coordinate with to improve cross-border management for conservation. The ACT also has strong connections with the NSW Office of Environment and Heritage (OEH) and consults regularly with the Australian Government departments of Environment, Water, Population and Communities (SEWPaC) and Agriculture, Fisheries and Forestry (DAFF). It should be noted that NSW Catchment Management Authorities will cease to exist and transition to new Local Land Service agencies with changed administrative boundaries from those above in 2014.

2. Restoring the ACT's focal landscapes

Conservation science prescribes that larger, more intact areas are generally more resilient and better able to provide conditions for species and ecosystems to adapt to climate change. The Strategy has adopted a 'landscape' approach (see Box 6 and Image 3) to prioritise conservation efforts across the ACT. Landscapes might be thought of as being similar in concept to 'planning zones'; that is, areas in which multiple land use objectives must be accommodated and multiple ecosystem services are supplied.

The four focal landscapes identified in the Strategy (see Map 2) have the following management and restoration objectives:

1. Urban landscape – objective is to enhance a range of ecosystems that are compatible with urban development, which provide specific environmental services such as connectivity, habitat and amenity in parks, open space and street-scapes. This landscape encompasses suburban Canberra and the smaller settlements such as Hall and Tharwa.
2. Rural landscape – objective is to strengthen connectivity between reserves and native vegetation remnants across other tenures and restore ecosystem services such as drinking water, habitat for native species and primary production, as the basis of large, resilient lowland areas that can be agriculturally productive, retain 'lifestyle values' of rural leases and be biodiverse.
3. Water catchment landscape – objective is primarily to restore the area's ability to provide both clean water and native habitat. This landscape focuses on the lower Cotter area, which was badly damaged by the 2003 wildfires that burnt through large areas of the ACT's reserve estate. Significant revegetation efforts have begun to restore this area and should continue in parallel with the management of weeds, pest animals, fire and recreation.
4. River corridor landscape – objective is to maintain water quality and in-stream flows, and protect and restore riparian vegetation buffering rivers and streams.

Management and restoration objectives will be implemented in a way that provides sufficient flexibility to achieve a balanced set of environmental, social and economic land management outcomes. Lands in Map 2 that are categorised as 'other' will continue to be managed in line with existing management regimes, and also be the focus of a number of new initiatives over the life of the Strategy (see Box 5)

Note: the terms 'rural' and 'urban' landscapes are general descriptors of the predominant current landuse within the landscapes. The use of these terms does not imply that land is reserved for these purposes, or that other landuses are not appropriate within these areas. The areas may change over time as decisions about landuse change are made under the Planning and Development Act 2007.

Image 1. As the climate changes, the Murrumbidgee River Corridor will provide an important refuge for native species. Revegetating the river corridor will improve water quality, and provide habitat and resources for native species.

Box 5: Managing 'other' land in the ACT

The Strategy focuses on prioritising new investments where they are most needed within focal landscapes. Lands classified in Map 2 as 'Other' – national park, rural lands, production forests and various other tenures – will continue to be managed in line with existing management regimes.

The large upland areas of Namadgi National Park and Tidbinbilla Nature Reserve are already largely intact and well managed and will continue to be directed through their plans of management. Plantation forests are managed both for production, and to stabilise from erosion large areas of water catchment that were previously burnt in the 2003 fires. These areas are managed around harvesting schedules and receive routine land management through the Parks and Conservation Service to control weeds, pests, forestry roads and fuel loads.

Rural lands that are not in focal landscapes will be managed by landholders in line with land management agreements, which among other things, recognise and seek to protect any remnant vegetation on these properties.

In addition to ongoing management, these areas will also be the focus of new initiatives and funding over the life of the Strategy, including a number of actions in response to the Commissioner for the Environment's Investigation into Canberra Nature Park. Some currently planned initiatives include:

• developing and implementing nature reserve operational plans for priority reserves
• restoring degraded areas of native vegetation on public land including within Canberra Nature Park
• developing and implementing pest animal management plans for rabbits and wild dogs across the ACT
• monitoring endangered species and ecosystems, and the abundance and extent of selected weed infestations in reserves and
• better balancing recreation and conservation values in reserves through development of an ACT Tracks and Trails Strategy.

3. Enhancing connectivity

Maintaining and enhancing ecological connectivity is widely regarded as a critical element in assisting biodiversity to adapt to climate change. The Strategy will seek to enhance connectivity between native vegetation patches to allow the easier movement of species across the landscape, facilitating better access for them to additional habitat and resources. As indicated in Image 2, connectivity can be developed at different scales.

Image 2: A simplified representation of the different scales of connectivity to be enhanced through the Strategy.

Each of these scales will have benefits for different species with different 'dispersal' (movement) patterns. Some species have small territorial ranges, so protecting and planting individual trees and patches of native vegetation at the 'site' scale will provide additional cover for these dispersal-limited species to forage and find resources. More wide-ranging species require movements between large habitat patches across a landscape to access a variety of locally rare resources. Facilitating regional connectivity will assist migratory species to move long distances between seasonal breeding grounds.

Box 6: What do we mean by 'landscape scale conservation'?

Conventional approaches to biodiversity conservation have commonly focused on protecting biodiversity through setting up and managing formal reserves such as national parks and nature reserves. Landscape scale conservation adopts a more holistic approach that integrates management across different land uses and land tenures
(Image 3) to better facilitate the movement of species and ecosystem processes. Maintaining and enhancing ecological connectivity is a key approach to implementing landscape conservation. Widely regarded as a critical element in assisting biodiversity to adapt to climate change, connectivity assists the movement of species between a mosaic of reserves and other habitat features across the landscape. Landscape scale conservation also aims to enhance resilience – the ability of natural areas (ecosystems) to persevere and adjust despite changes and disturbances as a result of changing land use and climate change impacts. Resilience depends upon the continuity of ecological processes such as energy flows, nutrient cycles, hydrological cycles and food webs. Natural areas should be more resilient if they are bigger and better connected, with abatement of threats (for example, through control of weeds and pests) and maintenance of ecological processes and intact native vegetation.

Image 3: Conceptual diagram showing some different elements of landscape scale conservation

3.1 Links with NSW

This Strategy is consistent with the draft NSW Biodiversity Strategy (2010–2015), which recognises the vital role of connectivity and bioregional planning across multiple scales. The NSW Biodiversity Strategy aims to coordinate and guide investment and effort in biodiversity conservation in NSW for the next five years.

The ACT, situated in two bioregions (the South–East Highlands and Australian Alps), is a key 'crossover' location of nationally important wildlife corridors. Upland areas in the ACT are already well-connected through the Australian Alps National Parks, a series of linked alpine and mountain reserves that stretches from the ACT into southern Victoria. The ACT has also begun working on east–west connectivity linkages from the ACT to the coast. This work is happening in collaboration with the Great Eastern Ranges Initiative (an initiative developed to strengthen the resilience of eastern Australia's mountainous ecosystems) through the Kosciuszko to Coast partnership.

The Strategy will increasingly focus on lowland connectivity linkages with NSW. Map 4 shows two major focal areas: continuing to maintain robust ecological connectivity links through the Australian Alps; and working in the northern 'Greater Goorooyarroo landscape', which includes areas of ecologically significant woodland in adjacent NSW. The ACT Government will work with a number of stakeholders in NSW to restore the Southern Tablelands Flyway, which is part of an important inland migratory route for birds. Map 4 (over page) also indicates a number of other potential habitat connectivity linkages with NSW, which will be pursued through the Strategy depending upon interest of partners and availability of resources.

Map 4: The ACT is a key 'crossover point' for biodiversity corridors, linking the mountainous corridors of the great divide and coastal ranges of eastern Australia (Great Eastern Ranges), with important inland migratory routes running through Central NSW and the Southern Tablelands (Western Woodlands Way and Southern Tablelands Flyway), and the Australian Alps National Parks.

4. Strategies and actions

Strategy 1: Enhance habitat connectivity and ecosystem function

Actions under this strategy form a key approach to enhancing landscape resilience. This strategy builds upon the bioregional and off-reserve conservation approaches outlined in the original Nature Conservation Strategy (1997) and uses new scientific understanding and partnerships to prioritise and implement on-ground works locally and cross border. Improving connectivity between patches of native habitat allows small populations of species to function as larger and more resilient populations. Maintaining ecosystem functions such as energy flows, nutrient cycles, hydrological cycles, and food webs will allow landscapes to better adjust to changing climatic conditions. Actions under this strategy will link together native vegetation at various scales, buffer existing habitat patches, link terrestrial and riverine systems, and conserve altitudinal gradients to allow species to shift their ranges in response to a changing climate.

1. Develop baseline information on landscape function

Knowledge about ecosystem function needs baseline information on key aspects of the ecosystem. Over the life of the Strategy, the ACT Government will develop these key understandings and provide baseline information on:

• a map of the ACT's vegetation communities at 1:25,000 scale
• vegetation connectivity mapping (spatial links analysis – see Map 5)
• habitat connectivity mapping for wildlife
• mapping native vegetation condition
• complete soil mapping for the ACT
• a hydro-geological profile
• a map of the most serious and widespread environmental weeds
• pathways and incidence of key migratory species (developed through a migratory species action plan)
• resilience analysis for key ACT ecosystems, such as box–gum woodlands, natural temperate grasslands and alpine bogs
• participation in cross border planning and sharing of relevant data.

2. Undertake fine scale planning for habitat connectivity

Fine-scale assessments within ACT landscapes will identify local priority areas and strategic investment opportunities to enhance habitat connectivity and ecosystem function across both public and privately managed lands.

3. Enhance regional connectivity

Habitat connectivity is vital for ensuring ecosystem function throughout a regional conservation network. The Strategy will increasingly focus on lowland connectivity linkages with NSW (Map 4).

Continental scale connectivity projects with NSW will focus on linking woodland habitat in the northern ACT with the Southern Tablelands Flyway. Priorities will focus on the Greater Goorooyarroo section of the Flyway and continue to manage intact linkages through the Australian Alps. The ACT will continue working with NSW on regional connectivity initiatives to align conservation and climate change adaptation investments.

Some guidance already exists through planning documents such as: the Murrumbidgee Catchment Action Plan; the Planning Framework for Natural Ecosystems of the ACT and NSW Southern Tablelands (NSW NPWS, 2002); and the forthcoming ACT–NSW Strategic Plan for Land Use and Infrastructure. The ACT has also entered into agreements for regional collaboration with the NSW Government and the South East Region of Councils (SEROC).

4. Assess conservation investment opportunities across public and privately managed lands in the ACT

A dynamic natural resource management (NRM) planning framework will be developed to adaptively manage conservation investments across public and privately managed land. Inherent in this approach will be a shift away from reliance upon static planning documents towards more flexible tools designed for adaptive management and feedback into implementation cycles. The ACT will make available online a comprehensive set of high quality, high resolution NRM planning layers (including those listed under 1 above) on ACTmapi, and manage data through the Spatial Data Management System. New spatial products will be synthesised and provided to government, the community and landholders, and will include priorities for management and protection such as:

• mapping of future climate refugia
• possible locations for carbon sequestration projects that maximise biodiversity co-benefits
• gaps in wildlife corridors that are critical to landscape connectivity
• wildlife corridors
• priority areas for restoration of habitat for threatened ecological communities
• potential species reintroductions or translocations.

Ongoing engagement with rural landholders will be important in identifying opportunities on leasehold land, and understanding how to better manage threats between private and publicly managed lands.

Map 5: 'Spatial links analysis' is one of the tools the ACT will use to plan potential corridors for a wide range of wildlife. Red pathways indicate where better management of native vegetation (including planting trees and shrubs) could improve connectivity for wildlife between habitat patches

5. Fund priority landscape actions

Investment will be sought through a variety of mechanisms, including government, private enterprise and in-kind contributions. Funding will be used to support restoration and enhancement of specific environmental services in each landscape. For example, investments in the ACT Woodland Restoration Program and the 'Restore ACT Goorooyarroo' project (see Map 7 and Box 9) will enhance carbon capture, native habitat and water quality, with possible production benefits for landholders. Further funding will be sought through sources such as the Australian Government Biodiversity Fund, Caring for our Country Initiative, Carbon Farming Initiative and other opportunities as they arise.

Strategy 2: Manage threats to biodiversity

There is a range of factors and processes that threaten biodiversity in the ACT. Invasive species (weeds and pests); overgrazing by pests, domestic stock and native animals; drought; inappropriate fire regimes; and land clearing remain the most critical issues to be addressed.

The Strategy will continue a number of actions initiated under the original 1997 strategy, particularly implementation of the weed and vertebrate pest strategies (now replaced by the Pest Animal Management Strategy), continuing to integrate ecological considerations into fire management, and a range of enhanced catchment management actions such as those detailed in the Lake Burley Griffin Action Plan (2012). Climate change is likely to make many of the current biophysical threats to biodiversity significantly worse. By managing current threats better, the ACT's biodiversity will be more resilient to climate change.

The actions against this strategy help improve landscape function and align with connectivity conservation and landscape priorities (Strategy 1).

1. Implement ACT Weed Strategy (2009–19)

Key priority actions:

• The schedules to the Pest Plants and Animals Act 2005 will be updated to reflect the new Weeds of National Significance and other emerging weeds of concern in the ACT.
• The ACT Government will develop pest plant management plans under the Pest Plants and Animals Act 2005 for critical weed species.
• The Environmental Weed Operational Plan will continue to be implemented, with a key focus on protecting environmental assets.
• Serious weed infestations across (and adjacent to) the ACT will be mapped to help prioritise action on weeds.
• A new weed monitoring system will be developed for the ACT.
• Programs that prevent new weed problems occurring will be developed.
• Innovative approaches will be trialled with landholders, such as increasing soil organic content and changing pasture management practices to combat invasive weed species such as African Lovegrass.

2. Implement Pest Animal Management Strategy (2012–22)

Key priority actions:

• Pest animal management plans under the Pest Plants and Animals Act 2005 will be produced for species that pose a critical threat to ACT biodiversity. A plan for rabbits is under development. The management of pigs, foxes and wild dogs will also be considered as priorities for the development of pest animal management plans.
• The schedules to the Pest Plants and Animals Act 2005 will be updated to reflect the new Environmental Pest Animals of National Significance (EPANS) and other emerging pests of concern in the ACT, in particular aquatic and invertebrate pests.
• The government will improve management of the impacts of cats on wildlife and consider expansion of the ACT cat containment policy.

3. Manage total grazing pressure on ecosystem function in reserves

Overgrazing by both native and pest species can harm sensitive ecological communities such as grasslands and grassy box–gum woodlands.

As a priority, the ACT Government will monitor the impacts of grazing on vegetation condition so it can respond to overgrazing impacts on natural ecosystems to maintain or improve ecological function, species diversity and vegetation condition. The government will continue to draw upon research related to grazing pressure that is underway in the Mulligans Flat woodland experiment.

The development and implementation of the Pest Animal Management Plan for Rabbits and the Kangaroo Management Plan are the key actions to manage total grazing pressure in reserves. Actions to manage the impacts of kangaroos and rabbits will be based on the best available science and understanding of impacts.

Ecological modelling of the link between kangaroo population densities and the conservation impacts of kangaroo grazing will inform future kangaroo management.

The use of strategic stock grazing in reserves to manage fuel loads will be informed by best available knowledge of the ecological impacts.

4 Establish and implement ecologically appropriate fire regimes

While appropriate fire regimes have been established for native vegetation communities in the ACT, a gap in knowledge remains around what constitutes appropriate fire regimes for fauna (vertebrate and invertebrate). Current and future research will identify appropriate ecological thresholds for controlled burns for fauna; combined with vegetation information, and these will be used to inform the Strategic Bushfire Management Plan.

Monitoring of post-fire recovery, from both the 2003 bushfires and routine controlled burns, will continue.

The Strategy recognises the role of the ACT Strategic Bushfire Management Plan Version 2 (SBMPv2) in guiding management decisions about fire regimes in different areas across the ACT. Where possible, the ACT Government manages planned fire regimes to ensure that they are as similar to natural ecologically based fire regimes as possible, resulting in significant ecological benefits.

The SBMPv2 also includes principles about the need to balance social and environmental benefits, particularly in areas such as the urban interface, where public safety requirements will take precedence. These principles also recognise the dynamic nature of natural ecosystems, and the need for fire managers to be able to identify and implement appropriate fire management practices on an ongoing basis. This adaptive management approach will be particularly important in response to climate change, under which it is anticipated that fires may become more frequent and severe.

5 Implement improved catchment management to support aquatic ecosystems

The ACT will continue to manage catchments, with the aim of maintaining or improving the condition of aquatic ecosystems under a changing climate.

The ACT Government will develop a catchment management plan for the ACT and region to manage land for all its values in a more integrated way. Maintaining environmental flows, managing sources of pollution, protecting and enhancing riparian vegetation, and keeping aquatic pest species out of pristine catchments such as the Upper Cotter will be key approaches. Further research will be required to understand the impacts of climate change on these systems and the adaptive management approaches that may be required.

Projects that increase habitat for in-stream biodiversity, such as fish ladders and artificial habitat, will be developed and pursued wherever possible. Implementing key actions in the Upper Murrumbidgee Demonstration Reach Implementation Plan (ACT Government, 2010) will be a high priority activity for which funding will be sought.

6 Develop a migratory species action plan

Current provisions under the Nature Conservation Act provide for recognition of Commonwealth listed migratory species through special protection status. It is proposed that a migratory species action plan be developed for the ACT. The plan will map critical habitat for migratory species that are known to regularly occur in the ACT, map potential habitat, identify strategies for management of migratory species, and identify any requirements for monitoring migratory species or their habitat.

7 Develop an ACT soils strategy

Soils are a major resource that underpins the health of natural, urban and rural ecosystems. ACT State of the Environment reports have recognised the limited availability of baseline soil data in the ACT, and the inability to report on changes in soil condition in relation to factors such as carbon storage, erosion, dryland salinity and acidification. An ACT soils strategy will be developed to provide a strategic approach to complete soil mapping for the ACT in accordance with national soil data collection and storage standards, and to guide the development of an ongoing program for monitoring soil condition and advising on best practice management for different soil types and land uses.

Strategy 3: Protect species and ecological communities

This strategy will institute actions that are designed to protect species and ecosystems by increasing landscape resilience. Many of the approaches under this strategy are carried over from the original 1997 Nature Conservation Strategy, but with an enhanced focus on understanding and assisting biodiversity adjust to the longer term impacts of climate change.

Currently, vulnerable and threatened species and ecological communities are the focus of action plans, which are a statutory requirement under the ACT Nature Conservation Act 1980. While the development of action plans will remain a priority for threatened species and ecosystems, management approaches will also enhance efforts to better manage species at risk by implementing actions that maintain and improve habitat conditions and reduce threats in key restoration landscapes (see Strategy 1).

1. Manage the protected area estate

The ACT's conservation estate is significant: it is the primary focus for the conservation of threatened species and ecosystems. Managing large intact and connected ecosystems within reserves is critical to the survival of many species and ecological communities. Plans of management are reviewed and updated to take account of new and emerging management issues. The government has agreed to a number of recommendations (see ACT Government, 2012) from the Commissioner for Sustainability and the Environment's Investigation into the Canberra Nature Park (ACT Commissioner, 2011), such as development of reserve operation plans for high priority areas, and monitoring of threatened ecosystems, species and abundance and extent of weeds in priority reserves. The agreed recommendations will be implemented over the next 10 years. Many are already included as explicit actions elsewhere in this Strategy.

2. Develop, implement and review action plans for threatened species and communities

Currently, vulnerable and threatened species and ecological communities are the focus of action plans. Action plans will remain the key approach to identify and manage threats to threatened species and communities.

There is currently no statutory requirement to review action plans. The ACT Government will ensure each action plan developed in the ACT is reviewed to ensure it remains current. Plans will also be updated as necessary if the outcomes from monitoring programs indicate actions need to be updated.

3. Restore and manage priority landscapes

Management approaches will also increase efforts to better manage species at risk by implementing management actions that maintain and improve habitat condition and reduce threats in key areas. Key actions will be delivered through Strategy 1 (priority landscape actions) and Strategy 2 (managing threats to biodiversity). Management actions will also focus on enhancing ecosystem resilience, to ensure that all species – including those not normally the focus of management (such as invertebrates – See Box 7) are provided with the best conditions to persist and thrive.

4. Identify biodiversity refugia under drought and climate change

Some areas in the landscape are likely to be important refugia from drought and climate change for a range of species. These areas may not have significant conservation value in their own right, but are important areas at certain times. The ACT Government will undertake work to identify and manage these potential areas. This work will be informed by Strategy 1 (Action 4) of this Strategy.

5. Monitor five priority ecosystems most vulnerable to threats

A great deal of uncertainty exists around what changes may occur to sensitive ecosystems (such as changes in structure, species assemblages, and persistence of these ecosystems) in response to climate change, land use change, fire, and new weed and pest animal incursion. In the ACT, the five most sensitive ecosystems are considered to be native temperate grasslands, grassy box-gum woodlands, alpine bogs, montane forests, and the Murrumbidgee-Cotter River system.

Some changes in these ecosystems may be beyond our ability to respond to, particularly some of the changes associated with long term climate changes. However, some changes can be managed. For example, if key weed and pest animal species are observed to be highly threatening to a particular ecosystem, early identification and response will reduce the likelihood of a transition to an undesirable ecosystem state (e.g. woodlands becoming dominated by woody weeds). The aim of any management intervention is to improve the resilience of that system to current and future threats.

In order to ensure that appropriate and timely management responses are developed and implemented, the ACT Government will continue to monitor the five priority ecosystems based on a common set of indicators. In terms of the Upper Cotter/Murrumbidgee, monitoring will focus on fish species only (water quality monitoring is already routinely undertaken in the ACT). Where unexpected negative changes are observed, appropriate management responses will be implemented.

6. Implement captive animal breeding and translocation programs

Captive breeding and translocation programs are a measure of last resort for management of animal species because they are expensive and high risk. Nevertheless, they can be critical to the survival of species that are facing an extreme risk of extinction in the wild and are used to provide a safeguard when species in the wild are threatened. Key actions include:

• The ACT will work with the NSW Office of Environment and Heritage to develop a common framework that can be used to guide translocation and captive breeding programs for animals.
• The captive breeding and reintroduction program for the corroboree frog will be maintained.
• Captive breeding and translocation programs for the brush-tailed rock wallaby and the reintroduction program for the eastern bettong will be maintained and expanded based on recommendations from the research community and availability of funding.
• Captive breeding and translocation programs for the grassland earless dragon and striped legless lizard are under development and will be implemented where feasible.

7. Propagate and translocate threatened plants

Propagation and translocation programs are a measure of last resort for management of plant species because they are expensive and high risk. Nevertheless, they can be critical to the survival of species that are facing an extreme risk of extinction in the wild and are used to provide a safeguard for species where threats to the species in the wild are being addressed. Key actions include propagation and translocation of:

• Tuggeranong lignum button wrinklewort
• Murrumbidgee bossiaea threatened orchids
• small purple pea Ginninderra peppercress.

Subject to community interest, a community plant rescue program will be developed and implemented for areas where development is proposed and plant rescue techniques such as translocation or seed harvesting are feasible.

8. Establish seed banks and seed orchards

The ACT will continue to work with the Australian National Botanic Gardens and Greening Australia on the development, management and use of seed banks and seed orchards for use in landscape restoration programs and threatened species management.

Consideration should be given to establishing and managing seed orchards 'in-situ' in natural ecological remnants on public and leasehold land. The ACT Government has already begun collecting seed for sensitive alpine bogs, and gaining a better understanding of propagation schedules in case future restoration is deemed necessary. The ACT Government will update the seed collection policy.

Box 7: Invertebrate diversity in grassy woodlands

The vast majority of global biodiversity consists of invertebrates – creatures without back bones. In the ACT, there has been some research on this large group of living organisms, primarily centered around two threatened species, the Perunga grasshopper, and the golden sun moth, found in the region's dwindling natural temperate grasslands.

Research in the woodlands of Mulligans Flat Sanctuary has focused on the role of woody debris (piles of timber that provide microhabitat structure) in increasing beetle diversity. This research (Barton et al, 2011) found that timber piles increased the abundance and species richness of beetles beneath log piles when compared to surrounding areas that are subject to grazing by herbivores (kangaroos and stock).

Important findings such as these provide impetus to replicate these kinds of approaches across other areas, particularly where grazing pressures are high. These findings will be incorporated into planning grassy woodland restoration works across the ACT's lowland areas (see also Map 7 and Box 9).