Pulu Keeling National Park Management Plan 2015-2025 (Cth)

COMMONWEALTH OF AUSTRALIA

Environment Protection and Biodiversity Conservation Act 1999

APPROVAL OF THE PULU KEELING NATIONAL PARK
MANAGEMENT PLAN 2015-2025

I, BOB BALDWIN, Parliamentary Secretary to the Minister for the Environment, acting pursuant to section 370 of the Environment Protection and Biodiversity Conservation Act 1999, hereby approve the Pulu Keeling National Park Management Plan 2015-2025.

Dated this …20… day of …August…, 2015

BOB BALDWIN

………………………………………………………

Bob Baldwin  

Parliamentary Secretary to the Minister for the Environment

Pulu Keeling

National Park

MANAGEMENT PLAN 2015-2025

© Director of National Parks 2015

ISBN 978-0-9807460-5-1

This work is copyright. Apart from any use permitted under the Copyright Act 1968, no part may be reproduced by any process without prior written permission from the Director of National Parks. Requests and inquiries concerning reproduction and rights should be addressed to:

Director of National Parks
Parks Australia
GPO Box 787
Canberra ACT 2061

Director of National Parks Australian business number: 13051 694 963

This management plan sets out how the park will be managed for the next 10 years under
the Environment Protection and Biodiversity Conservation Act 1999.

A copy of the plan is available online at:
environment.gov.au/topics/national-parks/parks-australia/publications

Foreword

Pulu Keeling National Park is one of the Australian Government’s smallest national parks; nevertheless, it is a place of considerable international conservation significance. As an isolated coral atoll in an almost natural state, its relatively pristine environment is a valuable biological asset and an increasingly scarce feature in the tropics.

The park was established on 12 December 1995 and comprises North Keeling Island and its surrounding marine waters within a roughly rectangular boundary, framing 2,602 hectares of land and sea. The park is a Commonwealth reserve under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) and is managed in accordance with the Act and the regulations made under it.

Pulu Keeling National Park is an internationally recognised seabird rookery and is listed as a Wetland of International Importance under the Ramsar Convention. It supports one of the world’s largest populations of the red-footed booby, Sula sula. It is also home to the endemic Cocos buff-banded rail, Gallirallus philippensis andrewsi, which is listed as endangered under the EPBC Act, and the Cocos angelfish, Centropyge joculator, which is endemic to both Christmas and Cocos (Keeling) Islands. The park supports at least 26 species of crabs, including several species of hermit crabs (terrestrial and aquatic), the red spider crab (Schizophrys aspera), swimmer crabs (Thalamitoides quadridens) and the coconut or robber crab (Birgus latro), which was formerly abundant on the southern atoll but is now rare or absent (Bunce 1988). Green turtles (Chelonia mydas), listed as vulnerable under the EPBC Act, nest on North Keeling Island and hawksbill turtles (Eretmochelys imbricata) occur in the waters of the park. Three other of the world’s seven marine turtle species visit from time to time. Two species of dolphin are regularly seen in the park, which has a healthy fish fauna with substantial populations of butterfly fish and sharks.

Pulu Keeling’s forests and other native flora are examples of the original vegetation of the region and include a number of species no longer found elsewhere in the Cocos (Keeling) Islands.

This third management plan for Pulu Keeling National Park has been prepared in accordance with the EPBC Act and through the engagement of and consultation with the local community, as well as off-island stakeholders (including scientists and researchers) and the broader Australian public. This includes two publicly advertised opportunities to provide written comments towards the development of the plan.

The plan takes into account the comments arising from these consultation activities and will guide the conservation and management of this small, unique and significant national park for the next 10 years.Pulu Keeling National Park will be managed to preserve its flora, fauna and marine environment, ensuring that the park’s ecological condition is maintained, while providing some opportunities for limited and controlled visitor access.

Sally Barnes
Director of National Parks

Acknowledgments

The Director of National Parks is grateful to the individuals and organisations who contributed to this management plan, in particular the Pulu Keeling National Park Community Management Committee, those who responded to the call to ‘Have Your Say’ and those who provided comments on the draft management plan for the park.

Contents   

Forewordi

Acknowledgementsii

Executive summary (in English)vi

Executive summary (in Cocos-Malay) ix

Vision and values of Pulu Keeling National Park 1

Park vision2

Park values2

Objectives of the plan 3

Management plan for Pulu Keeling National Park5

1. Introductory provisions 6

   1.1   Short title 6

   1.2   Commencement and termination 6

   1.3   Interpretation (refer also Appendix A – Page 70) 6

   1.4   Planning process and legislative context
   (refer also Appendix B – Page 73) 6

2. IUCN category 7

   2.1   IUCN category and zoning 7

3. Natural heritage management 9

   3.1   Terrestrial ecosystems and species 9

   3.2   Marine ecosystems and species 13

   3.3   Research and monitoring 15

4. Cultural heritage management 20

   4.1   Cultural heritage site management 20

5. Visitor management and park use 22

   5.1   Visitor access and use 22

   5.2   Tourism and other commercial activities 26

   5.3   Communicating park values 28

6. Stakeholders and partnerships 30

   6.1   Community, stakeholders and partnerships 30

7. Business management 32

   7.1   Assessment of proposals 32

   7.2   Capital works and infrastructure 36

   7.3   Compliance and enforcement 37

   7.4   Incident management 39

   7.5   New activities not otherwise specified in this plan 40

   7.6   Management plan implementation and evaluation 41

A description of the Cocos (Keeling) Islands
and Pulu Keeling National Park43

A description of the Cocos (Keeling) Islands
and Pulu Keeling National Park44

Location of the Cocos (Keeling) Islands44

Settlement of the Cocos (Keeling) Islands44

Governance of the Cocos (Keeling) Islands 47

History of North Keeling Island 48

History of Pulu Keeling National Park 49

The natural environment and ecology of Pulu Keeling National Park 51

Geology 51

Geomorphology and topography 51

Soils 52

Hydrology 52

Climate 53

Terrestrial environment 54

Flora 54

Fauna 57

Terrestrial vertebrates 57

Birds 57

Terrestrial reptiles 60

Invertebrates 60

Marine environment 60

Marine mammals 62

Marine reptiles 62

Fish 62

Corals 64

Molluscs 64

Crustaceans 64

Echinoderms (starfish, sea urchins, sea cucumbers) 64

Invasive species and other threats 64

Human impacts 64

Feral animals 65

Weeds 65

Yellow crazy ants 65

Cyclones and sea level changes65

Coral bleaching, white syndrome and crown of thorns starfish 66

Changes in the lagoon and associated ecosystems 66

Appendices 69

A.General list of definitions (including acronyms) 70

B.Planning process and legislative context 73

C.Description of the physical features and summary of
activities appropriate for each management zone 85

D.Commonwealth Heritage values of North Keeling Island 87

E.EPBC listed species 90

F.Vascular plants of Pulu Keeling National Park 92

G.Invertebrates, Echinoderms and Decapod crustaceans
of the Cocos (Keeling) Islands 94

H.Fish species of Pulu Keeling National Park 102

1. Compliance with reserve management and planning principles 110

J.Summary of results for the technical audit of the
third management plan for Pulu Keeling National Park 118

Maps

1. Management zones at Pulu Keeling National Park 8

2. Location of Cocos (Keeling) Islands 45

3. Pulu Keeling National Park 46

4. Vegetation distribution on North Keeling Island 56

Tables

1. Ramsar monitoring needs for Pulu Keeling National Park 16

2. Key features of the EPBC Regulations on access to
   biological resources as they concern the park 18

3. Decision-making processes and impact assessment procedures34

4. Impact assessment procedures – matters and considerations 35

5. Boundaries of the North Keeling Island Commonwealth Heritage
   site and the Emden historic shipwreck declared protection zone80

Bibliography and further reading 125

Executive summary

Introduction

Pulu Keeling National Park protects the natural and cultural values of North Keeling Island, an uninhabited low-lying tropical oceanic coral atoll, and its surrounding marine waters within a roughly rectangular boundary framing 2,602 hectares of land and sea. The coastal waters of the island are home to a unique array of fish and coral species. North Keeling Island forms part of the Cocos (Keeling) Islands, located approximately 2,900 kilometres north-west of Perth.

The park is one of the few remaining relatively pristine tropical islands in the Indian Ocean region. It contains rare ecosystems, as it is the only largely undisturbed island in the Cocos (Keeling) Islands group that retains its original ecosystems and their species. Because of its isolation, evolution and relatively minimal human impacts on its condition, the park is significant to studies of the distribution of oceanic island species and atoll formation.

North Keeling Island’s forests and other native flora are examples of the original vegetation of the region and include a number of species no longer found elsewhere in the Cocos (Keeling) Islands.

The park performs an important role preserving examples of the natural features of the Cocos (Keeling) Islands as they would have occurred prior to human disturbance. These features include:

• relatively pristine ecosystems and habitat of high significance for Indian Ocean seabirds, playing a vital part in the stability of the Indian Ocean seabird biota

• one of the largest known nesting habitats for the red-footed booby in the world

• unusual closed canopy forests comprising species generally found as stunted shrubs in successional forests on the shoreline of tropical islands elsewhere in the region

• habitat for 10 species listed as threatened under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) including:

-the buff-banded rail (Gallirallus philippensis andrewsi), listed as endangered under the EPBC Act and restricted to this island

-the green turtle (Chelonia mydas), listed as vulnerable under the EPBC Act, nests on the island’s beaches

• habitat for the robber crab (Birgus latro), recognised for its conservation significance on the International Union for the Conservation of Nature (IUCN) Red List of Threatened Species.

The island is significant to studies of island biogeography because of its evolution in isolation. The Cocos (Keeling) Islands were the only coral atolls visited by Charles Darwin in the 1830s. The assemblage of flora and fauna observed by Darwin on the Cocos (Keeling) Islands is now found only on North Keeling Island.

Management of the park

Pulu Keeling National Park was proclaimed on 12 December 1995. The park is a Commonwealth reserve under the EPBC Act and is managed by the Director of National Parks in accordance with the Act, the regulations made under it, and this management plan.

This plan sets out how the park and its natural and cultural values will be managed, protected and conserved for the next 10 years.

Natural heritage management

Natural heritage management within the park is primarily focused on biodiversity monitoring and management of invasive species, with some limited opportunities for research. Limitations in accessing the park during the year make comprehensive on-ground management difficult to achieve, but also reduce the likelihood and impacts of threats.

The park is home to thousands of migratory birds and is listed as a Wetland of International Importance under the Ramsar Convention. Monitoring of bird populations in the park is ongoing, with particular attention given to the red-footed booby population.

Recent studies of fish species observed in the park provided a baseline list of 201 species of fish from 41 families. This list is likely to significantly lengthen in future surveys. Monitoring of the health of coral within the park will also continue.

During the life of the previous plan, the central lagoon closed to the sea due to natural deposition of sediment. This natural change in ecological character has impacted on the biodiversity of the park, removing habitats for some species (particularly marine species within the lagoon) and providing new opportunities for others. As a result, ongoing change in the distribution, abundance and health of species within the park will need careful monitoring.

Six exotic or naturalised plant species occur on North Keeling Island. A survey program (the Island Wide Survey) which includes a weed-mapping component was initiated in late 2009 and repeated in 2012; this will guide future weed management programs.

The invasive yellow crazy ant (Anoplolepis gracilipes) is found across the island and is a possible threat to the Pisonia grandis forest – as yellow crazy ants are associated with large populations of scale insects, particularly Pulvinaria urbicola, that are also implicated in the canopy dieback of pisonia. While such scale has not been detected in the park, careful biosecurity measures and monitoring need to be undertaken to ensure accidental introduction of scale insects and other foreign and invasive species, such as rats and weeds, does not occur.

Cultural heritage management

The park is a listed for its natural and cultural heritage significance as a place on the Commonwealth Heritage List under the EPBC Act because of the park’s:

• importance in the course, or pattern, of Australia’s natural or cultural history

• possession of uncommon, rare or endangered aspects of Australia’s natural or cultural history

• potential to yield information that will contribute to an understanding of Australia’s natural or cultural history

• importance in demonstrating the principal characteristics of:

-a class of Australia’s natural or cultural places; or

-a class of Australia’s natural or cultural environments.

Three Malay graves from the late 19^th century are located near the southern shore of the island. In addition, the park contains evidence of simple base camps inhabited during early coconut and wildlife collecting trips.

The remains of the World War I German raider SMS Emden lie on the reef off the southern end of the island. The Emden is a historic shipwreck under the Historic Shipwrecks Act 1976, and a protected zone has been declared around it under that Act. An abandoned and inoperable small-gauge railway, once used by salvage teams to transport material from the wreck across the island, remains on the island.

These and other less tangible cultural sites will be monitored and maintained during the life of the plan.

Use and appreciation of the park

Due to the sensitivity of North Keeling Island’s wildlife, the foremost management objective of this plan will be the protection and conservation of the island and its wildlife. The island’s remoteness, difficulty to access and dependency on favourable weather conditions also constrains the number and type of people who can visit the park. Any visitation may be done in accordance with a permit, and this management plan also allows for commercial tours to be conducted in the park under a permit issued by the Director.

Ongoing effective communication of the conservation values of the park is essential to maintain community awareness of relevant conservation issues, including the fragility of the island’s natural ecosystems and its vulnerability to human impacts and invasive species threats.

Stakeholders and partnerships

The Director of National Parks is assisted in the management of the park by Parks Australia, a division of the Australian Government Department of the Environment. Parks Australia will work with relevant stakeholders and organisations to develop partnerships and whole-of-government approaches for implementing this plan, addressing regional conservation issues and other issues of mutual interest.

Community and stakeholder contributions to the management of the park will continue to be facilitated under this plan, particularly through the continuation of the Pulu Keeling National Park Community Management Committee, providing and supporting educational activities, employment of island residents and appropriate volunteer activities.

Compliance with relevant legislation

The EPBC Act prohibits certain activities being undertaken in the park except in accordance with a management plan. New activities not described or foreseen in this plan need to be assessed to determine whether they will impact on the park. Provision is made in this plan to enable the Director to take or authorise action in response to proposed new activities and issues not currently specified in the plan.

Review of this plan

Before the fourth management plan for the park is prepared, this plan will be evaluated to determine how effective and efficient it was in achieving its intended objectives and contributing to managing the values of the park.

Executive summary in Cocos-Malay

Ringkasan Penting Pengurusan

Pendahulaan

Taman Negara Pulu Keeling melindungkan nilai-nilai semulajadi dan kebudayaan Pulu Keeling. Ia adalah satu pulu yang tidak ada orang tinggal, pulu karang laut tropika yang rendah. Watasan laut dan tanah taman adalah sebesar 2,602 hekta. Laut dibagian pingiran Pulu Keeling adalah rumah untuk banyak jenis ikan-ikan dan batu karang. Pulu Keeling terpisah dari kumpulan pulu-pulu Cocos dan berada 2,900 kilomita disebelah utara-barat Perth.

Taman Negara Pulu Keeling adalah satu dari pulu-pulu yang asli yang masih tertinggal disebelah Lautan Hindia. Ia ada ekosistem yang istemewa sebab ia adalah pulu yang tidak banyak terobah dikumpulan pulu-pulu Cocos. Pulu ini masih ada ekosistem asli dan spesis-spesisnya. Ini terjadi kerana pulu ini terpisah, evolusi dan kesan manusia yang sedikit yang tidak banyak merobah keadaanya, taman amat penting untuk pembelajaran dalam bagian persebaran spesis pulu lautan dan bagaimana pulu-pulu terjadi.

Hutan dan tumbuhan (pokok-pokok) diPulu Keeling adalah contoh tumbuhan asli diwatasan sebelah sini dan termasuk spesis-spesis yang tidak ada lagi diwatasan lain pulu-pulu Cocos.

Taman Negara jalankan tugas yang penting dalam memelihara contoh-contoh sifat semula jadi dikepuluan Cocos yang pernah ada sebelum manusia datang dan merobahnya. Sifat-sifat ini termasuk:

• ekosistem yang hampir sempurna dan habitat (tempat tinggal spesis) yang penting untuk burung-burung laut dilautan Hindia, juga ada tugas penting untuk kestabilan ini.

• salah satu tempat burung besarang terbesar burung Booby Berkaki Merah (Burung Putih) didunia.

• hutan yang atasnya tertutup yang jarang ada dan spesis-spesis yang biasanya ditemui dipokok pokok rendah dipingir laut tempat tempat dilautan Hindia

• habitat untuk 10 spesis yang ada didaftar spesis yang terancham di bawah (Undang-undang Pemuliharaan Biodiversiti dan Perlindungan Alam Sekitar 1999 (Undang-undang EPBC) termasuk:

  -    Ayam Hutan (Gallirallus philippensis andrewsi), diliskan sebagai terancham dibawah (Undang-undang EPBC and hanya ada dipulu ini

  -    Penyu Betul (Chelonia mydas) diliskan sebagai spesies mudah diserang

• habitat untuk Udang Darat (Birgus latro), perlu untuk pemuliharaanya yang disokong oleh IUCN (Kesatuan Pemuliharaan Dunia)

Pulu adalah penting untuk kajian kajian pasal biogeoraphy pulu-pulu disbebabkan evolusinya yang bejalan secara terpisah. Pulu Cocos Keeling adalah satu satunya pulu karang yang dilawat of Charles Darwin ditahun 1830an. Kumpulan binatang dan pokok pokok yang pernah ditengok oleh Darwin sekarang hanya ada diPulu Keeling.

Pengurusan taman negara

Taman Negara Pulu Keeling telah diisytiharkan pada 12 December 1995. Taman adalah perwatasan penjagaan alam Komonwel dibawah Undang-undang EPBC dan djaga oleh Direktur Taman-Taman Negara mengikut undang-undang dan juga pelaturannya dan renchana pengurusan.

Renchana kasi tahu bagaimana taman dan nilai-nilai semulajadi dan kebudyaanya dijaga untuk selama 10 tahun.

Pengurusan warisan semulajadi

Pengurusan warisan semulajadi didalam taman banyak ditujukan kepada pengawasan biodiversiti dan pengurusan spesis-spesis yang menganggu, dengan kesempatan sedikit untuk pembelajaraan. Akses yang agak susah atau tidak tentu untuk pergi ditaman dalam beberapa masa dalam setahun membuat pengurusan yang lebih luas susah untuk dibuat, tapi ini membantu mengurangkan gangguan-gangguan.

Taman adalah rumah buat ribuan burung yang berpinda-pinda (migratory) dan ia juga didaftarkan sebagai tanah-tanah basah (wetland) penting antarabangsa diPerjanjian RAMSAR. Pengawasan hidupan burung ditaman adalah berterusan, dan perhatian diberi kepada burung Booby Berkaki Merah.

Kajian yang baru dijalankan berkenaan spesis-spesis ikan ditaman menunjukan yang 201 jenis ikan dari 41 Keluarga (Family) ada dan didaftarkan dibagian Pulu Keeling. Daftar ini akan bertambah panjang bila kajian dibuat dimasa hadapan. Pengawasan pasal kesihataan karang-karang laut juga terus dijalankan.

Dilalam masa Renchana yang lepas, teluk (lagoon) tertutup di bagian laut disebabkan proses semulajadi pasir-pasir (sediment). Pertukaran sifat-sifat ekologi secara semulajadi ada kesan terhadap biodiversiti ditaman. Contahnya kurangnya habitat buat beberapa spesis (seperti spesis lautan dalam teluk) tapi kasi kesempatan buat spesis lain. Jadi pertukaraan yang beterusan dari segi persiaran, banyaknya dan kesihatan spesis dalam taman perlukan pengawasan yang rapi.

Ada enam spesis tumbuhan luar yang sudah ada diPulu Keeling. Program Survey Pulu yang ada membuat map tumbuhan mula dibuat ditahun 2009 dan dibuat lagi ditahun 2012. Survey ini akan kasi haluan buat program kurangkan pokok-pokok menganggu untuk masa hadapan.

Semut Gila Kuning (Anoplolepis gracilipes) yang menganggu ada diseluruh taman dan ia boleh merusakan hutan pokok ampol, Semut Gila Kuning biasa berkumpul dengan kutu-kutu pokok (scale insect) seperti spesis Pulvinaria urbicola yang bertanggung jawab merusakan daun-daun pokok ampol. Biar pun spesis kutu belum ada ditaman, penjagaan dan pengawasan biosecurity rapi diperlukan untuk memastikan spesis ini dan juga spesis menganggu lain seperti tikus dan pokok pokok tidak datang secara tidak sengajak.

Pengurusan warisan kebudayaan

Taman didaftarkan kerana kepentingan warisan semulajadi dan kebudayaanya sebagai satu tempat diDaftar Warisan Kommonwel dibawah Undang-undang EPBC sebab:

• Kepentingan dalam haluan dan macamnya (pattern) buat sejarah semulajadi dan kebudayaan Australia

• Adanya bagian/sifat sejarah semulajadi dan kebudayaan Australia yang jarang dan dalam kesusahan

• Mungkin boleh kasi keterangan yang boleh membantu untuk mengerti sejarah semulajadi dan kebudayaan Australia

• Penting dalam menunjukan ciri-ciri asas bagi:

  -    satu klas buat tempat semulajadi dan kebudayaan Australia

  -    satu klas buat alam sekitar semulajadi dan kebudayaan Australia

Tiga kuburan Melayu dari abad kesembilanbelas ada dekat piggir laut sebelah selatan. Dan lagi taman ada bekas-bekas pondok yang dipakek untuk ambik kelapa dan binatang dimasa yang dulu.

Bekas kapal SMS Emden German waktu Perang Dunia yangg Pertama ada dibaria karang bagaian selatan. Kapal Emden adalah bekas kapal laut bersejarah dibawah Historic Shipwrecks Act 1976 dan watasanya (zone) juga dilindungkan. Satu jalan rel kecil yang ditinggalkan dan tak boleh dipakak lagi masih ada dipulu. Jalan rel ini dulu dipakek untuk bawak barang barang dari kapal.

Ini semua dan peninggalan tempat kebudayaan yang lain akan diawasi dan dijaga waktu Renchana ini dijalankan.

Kegunaan dan penghargaan taman

Disebabkan hidupan liar sensitif Pulu Keeling, tujuan pengurusan yang paling penting adalah pemuliharaan dan perlindungan pulu dan hidupannya. Pulu yang jauh dan susah akses dan berharap pada cuacha yang baik membuat susah untuk banyaknya dan macam orang yang boleh melawat ditaman. Setiap pelawatan mesti mengikut pelaturan permit, dan renchana ini juga kasi kebenaran untuk perlancungan secara kommersel dijalankan ditaman gunakan permit yang disahkan dari Direktur.

Pengomongan baik yang selalu dijalankan pasal nilai-nilai pemuliharaan taman adalah amat penting untuk pastikan supaya masyarakat tahu pasal pasal pemuliharaan, termasuk ekosistem semulajadi pulu yang senang rusak dan boleh terganggu disebabkan oleh perbuatan manusia dan anchaman dari spesis-spesis yang menganggu.

Stakeholders dan kerja sama

Direktur Taman-taman Negara dalam tugas pengurusan pulu dibantu oleh Parks Australia, satu divisi dari Depatmen Alam Sekitar Australia. Parks Australia akan berkerja sama dengan stakeholders dan organisasi- organisasi untuk membuat kerjasama untuk menjalankan renchana ini, bekerja untuk selesaikan isu-isu pemuliharaan watasan dan pekara-pekara yang kenak menganak dengan semua.

Bantuan masyarakat dan stakeholders akan terus dijalankan dalam renchana ini, terutamamanya dengan bekerja dengan PKNPCMC, kasi dan bantu buat aktiviti-aktiviti pembelajaraan, kasi penduduk pekerjaan dan aktiviti-aktiviti sukarela yang yang kenak.

Pengikutan dengan undang undang

Undang-undang EPBC melarang seberapa aktiviti dari dijalankan ditaman kecuali kalok mengikut pelaturan renchana pengurusan. Aktiviti-aktiviti baru yang tidak disebut atau dilihat didalam renchana akan diperiksa untuk pastikan apa ia boleh menganggu taman atau tadak. Ada bagian renchana ini yang benarkan Direktur merekenkan jawapan untuk aktiviti-aktiviti dan isu-isu yang tidak disebutkan dalam renchana.

Pemeriksaan renchana

Sebelum renchana pengurusan yang nomor empat dibuat, renchana ini diperkisa untuk pastikan berapa effective dan bagus ia dapatkan tujuan yang ditetapkan dan cara ia membantu mengurus nilai-nilai taman.

Vision and values of
Pulu Keeling National Park

Vision and values of Pulu Keeling National Park

Park vision

Pulu Keeling National Park continues to be recognised for its natural, cultural and scientific values, as an isolated atoll with largely intact marine, terrestrial and wetland ecosystems, with minimal human impact upon its natural condition.

Park values

Pulu Keeling National Park is an uninhabited low-lying tropical oceanic coral atoll, mostly covered by sand and fragments of coral and pumice, on top of an old volcanic seamount that rises from a depth of 5,000 metres.

The park includes all of North Keeling Island, a land area of 1.2 square kilometres and a central lagoon wetland, and surrounding marine waters extending 1.5 kilometres from the island’s shore.

The park was proclaimed in December 1995 for the purposes of:

• The preservation of the area in its natural condition

• The encouragement and regulation of the appropriate use, appreciation and enjoyment of the area by the public.

The land area of the park falls within the Indian Ocean Tropical Islands bioregion under the Interim Biogeographic Regionalisation for Australia. The marine waters of the park fall within the Christmas Island Province marine bioregion.

Natural values

• The park contains internationally significant habitats and biodiversity.

  -   The park is in a relatively pristine state and supports rare and original ecosystems and their species; it includes terrestrial, wetland and marine habitats.

  -   The park preserves terrestrial plant communities that are the last intact remnants of the original Cocos (Keeling) Islands plant communities.

  -   The park supports the most diverse seabird populations in the Indian Ocean and is the only seabird rookery within a radius of 900 kilometres.

  -   The park supports coconut trees that are considered to be the most primitive form of the species.

  -   The park supports globally threatened species (green and hawksbill turtles) and two endemic subspecies (Cocos buff-banded rail and Cocos subspecies of pandanus).

  -   The park supports a diverse fish fauna including hybrid fish, with substantial populations of butterfly fish and sharks.

Cultural values

• The park contains relics and remains from human activities undertaken early last century, and an internationally significant shipwreck: the SMS Emden.

  -   The park contains sites of social and historical significance, including the wreck of a German raider, the SMS Emden, sunk by the HMAS Sydney in 1914, the first naval engagement for the Royal Australian Navy.

Objectives of the plan

Based on the park’s values the objectives for management of the park are:

-The park’s natural values are protected and conserved

-There is a greater understanding of marine and terrestrial ecosystem diversity, processes, values and threats to inform conservation management decisions

-The park’s cultural values are protected and conserved

-A limited range of opportunities are available during the life of the plan for rare, unique, educational and safe natural and cultural-focused experiences without disturbing park values

-Cooperative and productive partnerships with stakeholders help address the prescriptions of this plan and issues of mutual interest

-Appropriate management actions are implemented to support the administration, management and protection of the park.

The park’s values provide the basis and rationale for the management of the park and underpin this plan’s objectives, policies and actions.

The management prescriptions in this plan contribute to achieving the objectives for the management of the park. These objectives support the purpose for which the park was declared and conservation of the park’s values and ensure the park is managed consistently with the assigned International Union for the Conservation of Nature (IUCN) categories. The conditions of the Lease for the park (to the Commonwealth) require this plan to take into account and incorporate world-class park management practices. For further information on the lease arrangements for the park, see Section 6.1, Community, stakeholder and partnerships.

Each year thousands of red-footed boobies
gather to nest on North Keeling Island

 

Management plan for

Pulu Keeling National Park

1. Introductory provisions

Short title1.1       

This management plan may be cited as the Pulu Keeling National Park Management Plan.

Commencement and termination1.2       

This management plan will come into operation following approval by the Minister under s.370 of the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act), on a date specified by the Minister or the day after it is registered under the Legislative Instruments Act 2003, whichever is later, and will cease to have effect 10 years after commencement, unless revoked sooner or replaced with a new plan.

Interpretation1.3       

Definitions of terms, concepts, legislation and acronyms used in this plan are provided in Appendix A.

Planning process and legislative context1.4       

A summary of the legislative context under which this management plan was prepared is provided at Appendix B, including a description of the legislative basis for the establishment of the park and a description of international conservation agreements applicable to the management of the park.

1. IUCN category

The International Union for the Conservation of Nature (IUCN) categorisation and zoning scheme for the park takes into account the requirements of the EPBC Act and the Environment Protection and Biodiversity Conservation Regulations 2000 (EPBC Regulations), including relevant reserve management principles; and regional conservation strategies aimed at conserving biodiversity through such things as protection of threatened species and habitat and conservation of the marine environment.

IUCN category and zoning2.1       

Background

The IUCN defines a protected area as ‘an area of land and/or sea specifically dedicated to the protection and maintenance of biological diversity, and of natural and associated cultural resources, and managed through legal or other effective means’.

The EPBC Act requires this management plan to assign the park to one of the Australian IUCN categories prescribed in the EPBC Regulations (which correspond to the IUCN categories). The EPBC Act also allows a management plan to divide a reserve into zones and to assign the zones to an IUCN category, which may differ from the overall category of the reserve. The EPBC Regulations (Schedule 8) prescribe the Australian IUCN reserve management principles for each of the seven Australian IUCN categories.

Issues

• The EPBC Act requires that the park and any zones into which it is divided are assigned to an appropriate IUCN category.

• The terrestrial and marine areas of the park have different management requirements and vulnerabilities. An appropriate IUCN management category needs to be assigned to each zone.

What we are going to do

Policies

2.1.1      The park is assigned to Australian IUCN category Ia (strict nature reserve).

2.1.2      The park is divided into two zones:

1. Strict Nature Reserve Zone:

(a)assigned IUCN category Ia (strict nature reserve)

(b)consisting of the terrestrial area of the park to the low water mark, including the lagoon area

2. Marine Reserve Zone

(a)-  assigned IUCN category II (national park)

(b)-  consisting of the marine component of the park from the low water mark.

Map 1 indicates the areas covered by each zone. A description of the features of each zone and a summary of activities appropriate for each management zone appears as Appendix C.

Map 1:Management zones at Pulu Keeling National Park

1. Natural heritage management

Objectives

• The park’s natural values are protected and conserved

• There is a greater understanding of marine and terrestrial ecosystem diversity, processes, values and threats to inform conservation management decisions.

Performance indicators

The following indicators will be used under this plan to measure performance in natural heritage management:

• Area of Pisonia grandis is maintained

• Abundance of red-footed booby and the Cocos buff-banded rail is maintained

• Yellow crazy ant and coral berry distribution is reduced

• No new invasive species establish

• Cover of healthy coral reef habitat in the park is maintained

• Extent to which management plan research and monitoring priorities are implemented.

Terrestrial ecosystems3.1        and species

Background

Values

Given the extensive modification of the vegetation of the southern atoll for coconut plantations and settlements, the vegetation of North Keeling Island is now particularly significant as the last intact remnant of the original Cocos (Keeling) Islands flora.

The forest vegetation is dominated by tall pisonia (Pisonia grandis) and coconut (Cocos nucifera) with small amounts of ironwood (Cordia subcordata) and other species. The forest is fringed on the lagoon shore by tea shrub, Pemphis acidula, and on the exposed ocean shores by octopus bush (Argusia argentea) shrubland. Each of these vegetation communities supports breeding colonies of seabirds. See also Map 4.

The island is a key breeding site for red-footed boobies, a listed migratory species under the EPBC Act, and listed under international migratory bird agreements including JAMBA and CAMBA. The environmental assessment and approval provisions of the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) apply to any actions affecting listed species.

The island is also the main refuge of the Cocos buff-banded rail, Gallirallus philippensis andrewsi, an endemic subspecies which was listed as endangered in 1998. Monitoring of buff-banded rail populations indicated they are stable.

The key objectives of the National Recovery Plan for the Buff-banded Rail (Commonwealth of Australia. (2006)) are the establishment of a suitable habitat for a second viable population in the southern atoll and the reduction of threats to the species across the island group. In 2013 the reintroduction of the buff-banded rail to the southern atoll was initiated (see page 58 for details).

North Keeling Island supports several species of land crabs, including the robber crab (Birgus latro). Like the seabird colonies, this species requires careful management consideration.

The whole of Pulu Keeling National Park was listed as a Ramsar Wetland of International Importance in 1996. As a consequence, the content of this management plan also provides for the management of the Ramsar site, monitoring, protecting and conserving the ecological character of the site. The prescriptions within this management plan are consistent with Australian Ramsar management principles and other relevant obligations under the EPBC Act for maintaining the values and ecological character for which the park has been listed.

Threats

North Keeling Island is one of the few seabird colonies in the Indian Ocean as yet unaffected by vertebrate pests, such as cats and rats. The vulnerability of seabird colonies to introduced animals is well documented (Director of National Parks 2014). The protection of the island against the accidental introduction of exotic animals or diseases is paramount.

Six exotic or naturalised plant species are known to occur on North Keeling Island: Indian copperleaf (Acalypha lanceolata), limeberry (Triphasia trifolia), wild gooseberry (Physalis minima), pigweed (Portulaca oleracea), pawpaw (Carica papaya), and coral berry (Rivina humilis). None of these plants are considered to be a severe environmental problem, or to have the potential to become one in the foreseeable future (Claussen and Slip 2002). However, the distribution and abundance of some introduced plants, particularly coral berry, appeared to increase during the life of the last management plan.

Surveys show that numbers of the yellow crazy ant (Anoplolepis gracilipes) were high in some patches of pisonia forest on North Keeling Island, reaching abundances seen in supercolonies on Christmas Island. This is an important conservation concern, since on other oceanic islands yellow crazy ants are associated with large populations of scale insects, particularly Pulvinaria urbicola, that are also implicated in canopy dieback of pisonia (Hill et al. 2003, Smith et al. 2004; Kay et al. 2003; Handler et al. 2007). Surveys to examine the occurrence of scale insects on the island undertaken in May 2011 did not detect the presence of Pulvinaria urbicola scale insects on pisonia, however a mealybug was found on coconut palm. 

Winds from cyclones have destroyed substantial amounts of vegetation in the past and have had a detrimental effect on the breeding seabird populations. In January 1989 Cyclone John devastated the red-footed booby population on North Keeling Island.

Under the previous plan, permits could be issued for the collection of plant propagules. No requests for such permits were received during the life of the previous plan.

To enable the Cocos-Malay community to continue traditional crafts, permits were available under the previous management plan for the collection of small amounts of ironwood from North Keeling Island and will continue to be available under this plan. At the time of preparing this plan, no permits had been requested or issued for the collection of ironwood since the park was proclaimed.

Note: Under ss.354 and 354A of the EPBC Act a person (including the Director) may not kill, injure, take, trade, keep or move a member of a native species except in accordance with a management plan. The Environment Protection and Biodiversity Conservation Regulations 2000 (EPBC Regulations) (r.12.20) also prohibit taking animals and plants into the park.

Mining operations are prohibited in Pulu Keeling National Park by the EPBC Act (ss.355 and 355A) except where authorised under a management plan.

Under regulation 12.15 a person must not use or introduce a pesticide, herbicide or other poisonous substance in the park, unless it is provided for by, and carried out in accordance with, a management plan in force for the park, or is authorised by a permit, or under certain other conditions (r.12.06).

Research and monitoring will be undertaken in accordance with Section 3.3, Research and monitoring.

Issues

• Reducing threats to vegetation and significant habitats, particularly existing invasive species and the likelihood of additional invasive species entering and establishing.

• Managing the park’s biodiversity, especially threatened species, in a bioregional context. This may include the need to facilitate and/or assist with off-park conservation actions such as the reintroduction and/or monitoring of native species to the southern atoll, which requires significant resources and effective stakeholder collaboration.

• Access to North Keeling Island is difficult or limited, restricting the amount of research and monitoring activities that can be undertaken.

What we are going to do

Policies

3.1.1      The park will be managed to maintain its values and ecological character in accordance with the Australian International Union for the Conservation of Nature (IUCN) management principles and the Ramsar Ecological Character Description.

3.1.2      The park will work collaboratively with stakeholders, particularly the Territory Administration, the Cocos (Keeling) Islands Shire Council and relevant natural heritage researchers and managers, in regard to regional approaches to the conservation and management of terrestrial and marine habitats and biodiversity within the Cocos (Keeling) Islands Province bioregion.

3.1.3      The Director may take actions concerning native species within the park, including species listed under Part 13 of the EPBC Act, that are otherwise prohibited by the EPBC Act where they are necessary to implement this plan, or where they are otherwise necessary for preserving or protecting the park, protecting or conserving biodiversity, or protecting persons or property in the Park.

3.1.4      Plant propagules may be taken and removed from the park by park staff or in accordance with a permit issued by the Director under the EPBC Regulations for the revegetation of the southern atoll. Plant propagules may only be taken after assessment of the potential impact of the activity on park vegetation and dependent communities, and subject to conditions that minimise such impact.

3.1.5      Permits may be issued for the collection and removal of ironwood from the park for the purpose of building model boats and other craftwork within the Cocos community. A permit may be issued only if the environmental impacts would be minimal and after a thorough assessment of alternative sources has been completed by the proponent.

3.1.6      Subject to invasive species/biosecurity and toxin risk assessments, hardwood and softwood timber may be brought into the park and used for management purposes. See also Action 3.1.11.

3.1.7      Exotic weeds, animals and pathogens may be controlled or eradicated using chemicals, physical methods, but care will be taken to minimise the effects on non-target species (using minimum-residue chemicals wherever practicable, subject to Section 7.1, Assessment of proposals).

3.1.8      Subject to risk assessments and required approvals, the Director may introduce, or issue a permit for the introduction of, non-native species into the park for conservation purposes – for example, for use in the biological control of one or more invasive species.

3.1.9      Mining operations are prohibited in the park.

Actions

3.1.10   In accordance with relevant sections of this plan, monitor and maintain the ecological character of the Ramsar listed wetland known as Pulu Keeling National Park. This will include monitoring characteristic biodiversity and changes to the lagoon and ecosystems, as well as monitoring and, as needed, mitigating the impacts of threats.

3.1.11   Continue to implement targeted invasive weed and fauna management programs. This may include control programs for yellow crazy ants (subject to 3.3.6.d)

3.1.12   Develop and implement strict biosecurity measures to assess and minimise the risk of the introduction and establishment of new invasive species and pathogens. This will include:

(a)   assessing the likelihood of particular species entering, as well as entry pathways

(b)   reducing the likelihood of introducing species and pathogens when staff and visitors enter the park

(c)   monitoring for the early detection of species and pathogens that may enter the park, in particular scale insects, rats and siam weed

(d)   rapidly controlling and, where feasible, eradicating any new invasive species detected in the park. Target species include but are not limited to rats, mice and Siam weed

(e)   reducing and/or assessing risks of rehabilitated and returned seabirds introducing invasive species (especially diseases and pathogens) into wild seabird populations and/or the park.

3.1.13   So far as is practicable, implement or support the implementation of relevant EPBC recovery plans and relevant threat abatement plans for listed threatened species and key threatening processes.

3.1.14   Support and/or facilitate the establishment of ex situ populations of selected native species, particularly the buff-banded rail and flora species for rehabilitation purposes.

3.1.15   If EPBC Act listed species or other significant species are in decline to a level that may threaten their conservation status, the Director will:

a)     evaluate existing and potential threats and implement appropriate mitigation measures

b)     if threats are not known or are unlikely to be mitigated for some time, assess the feasibility and effectiveness of implementing interventionist measures, such as ex-situ conservation and species reintroduction, that have the long-term aim of conserving the species in their natural environment.

3.1.16   Undertake risk and impact assessments of the potential and any actual impacts of unauthorised arrivals and use of the park, and implement appropriate risk and impact mitigation measures (See also Section 6, Stakeholders and partnerships).

Marine ecosystems and species3.2       

Background

Values

The park contains marine habitats that were once common to other parts of the Indo-Pacific region. The park is unaffected by development pressures now seen on similar coral atolls in many other parts of the region and the world generally.

In 2009 the Department commissioned a study titled Conservation values in Commonwealth waters of the Christmas and Cocos (Keeling) Island remote territories. The study indicated that the marine environment is highly unique with many potential deep-ocean ecological systems that we have very little understanding of, particularly deep-water and other systems below scuba diving depth.

Scientific surveys have shown that the Cocos (Keeling) Islands fall within a marine suture zone where interbreeding may occur between Indian and Pacific Ocean fish species. This has resulted in a high degree of fish hybridisation around the Cocos (Keeling) Islands, which could ultimately lead to the evolution of new species (Hobbs et al. 2008).

At the time of preparing this plan, 201 species of fish had been recorded in the park (Hobbs 2010). This number may increase with additional surveys, given that approximately 550 species have been recorded from the southern atoll (Allen and Smith-Vaniz 1994). Research and monitoring in the park will be undertaken in accordance with Section 3.3 of this plan, Research and monitoring.

Threats

Coral reefs worldwide are under threat, with remote reefs in the Indian Ocean being among the worst affected. In 1998, a mass coral bleaching event resulted in 90 to 99 per cent mortality of corals on many Indian Ocean reefs, and remote locations have proved particularly vulnerable to these disturbances because isolation has limited their recovery (Hobbs 2006). Coral bleaching, crown-of-thorns starfish and coral disease have also affected reefs in the Cocos-Christmas region.

More recently, an outbreak of white syndrome coral disease resulted in widespread mortality of Acropora plate corals at Christmas Island in 2008 (Hobbs and Frisch 2010). White syndrome disease was also present in 2008 on a small number of plate corals at the southern atoll, but no disease was recorded on plate corals at North Keeling Island (Hobbs and Frisch 2010). During a recent survey of North Keeling Island no occurrences of white syndrome or crown-of-thorns starfish were detected (Hobbs 2010).

Some of the stocks of fish and invertebrates in the region are highly vulnerable and isolated; they have very little resilience to overfishing and, once depleted, have almost no capacity to recover. Evidence for the fragility of the stocks is demonstrated by the regional extinctions at the Cocos (Keeling) Islands of threadfin salmon (Polynemus indicus) within the past 50 years or so, and the drastic depletions of species such as the giant clam (Tridacna gigas) within only the last 10 years (Hourston 2010).

Large quantities of plastic items from south-east Asia, where there is a high human population density in contact with an extensive coastline, end up in the surrounding seas. The accumulation of durable rubbish reaching Christmas Island and the Cocos (Keeling) Islands was considered to be the highest recorded within the Indian Ocean region in a survey of natural and plastic flotsam conducted by the British Natural Environmental Research Council in 2004. During the survey, 23.5% of debris investigated on the shores of the Cocos (Keeling) Islands was found to be colonised by living organisms. The vast amount of waterborne debris in the Indian Ocean is providing increased opportunities for marine organisms to travel and thus for exotic invaders to spread (Barnes 2004).

Marine debris also causes the death and debilitation of marine turtles and other marine wildlife (Balazs 1985, Cawthorn 1985). The ingestion of plastic marine debris and the threat of being tangled in fibrous material, such as netting and plastic strapping, is of concern for the health of marine biodiversity including sea turtles and seabirds. Responding to stranding events and quantifying mortality caused by marine debris are identified as actions to monitor and manage in the Recovery Plan for Marine Turtles in Australia (Commonwealth of Australia 2003). The recovery plan further suggests that some assessment of the impact of ingested debris should be determined through post-mortem examinations of stranded animals.

In 2005, the lagoon entrance closed as a result of natural forces of deposition and is no longer flushed with seawater, leading to significant changes within this habitat (Hobbs 2009). As a consequence, the lagoon no longer supports large numbers of fish and invertebrates and it is considered that mud crab (Scylla sp.) and bonefish (Albula glossodonta) have become locally extinct (Hobbs 2009).

Research and monitoring will be undertaken in accordance with Section 3.3, Research and monitoring.

Note: Under ss.354 and 354A of the EPBC Act a person may not kill, injure, take, trade, keep or move a member of a native species except in accordance with a management plan. The EPBC Regulations (r.12.20) also prohibit taking animals and plants into the park. See also Policy 3.1.2 with regard to actions undertaken by the Director and actions undertaken by persons authorised by the Director.

Issues

• More knowledge is needed about marine ecosystems and species, including threats, interactions between marine and terrestrial ecosystems and species, and the distribution and abundance of significant and ‘at risk’ species.

• Preventing, monitoring and mitigating threats is a priority. Threats may include recreational or illegal fishing, changing ocean conditions and temperatures, coral disease and bleaching, pollution and introduced species.

• Access to the waters of North Keeling Island is limited, restricting the amount of research, monitoring, compliance and enforcement activities that can be undertaken.

What we are going to do

Policies

Policies 3.1.1 and 3.1.2 apply to the Marine Reserve Zone.

Actions

3.2.1      So far as is practicable, support the implementation of relevant species recovery plans, particularly for marine turtles, and threat abatement plans. This may include contributing to off and on park recovery actions.

3.2.2      Assess and monitor threats to marine ecosystems and species (including biosecurity threats and marine debris) and work with stakeholders to implement threat mitigation measures (see also Action 3.1.11).

Research and monitoring3.3       

Background

Research and monitoring provides baseline and updated information about the resources of the park, visitor use and impacts. Monitoring is an essential management tool for keeping track of changes to the environment and for measuring the success of management actions.

During the life of the previous plan a number of studies were undertaken including investigations into the status of the Cocos buff-banded rail population, coral reefs and marine resources. In addition, a risk assessment was undertaken on the impact of climate change on the Indian Ocean Territories, and monitoring of crazy ants, weeds, seabirds and marine turtles was undertaken. Vegetation mapping also progressed, with the use of high-resolution aerial imagery, followed by ground-truthing of data.

A primary ecological value of North Keeling Island is its role as a seabird colony and as critical habitat for the endangered and endemic Cocos buff-banded rail. To increase knowledge and the capacity to manage these seabird species successfully, research and monitoring should be directed towards the breeding success, habitat utilisation and factors affecting adult and juvenile mortality of seabirds and Cocos buff-banded rail.

The vegetation of North Keeling Island is also particularly significant as the last intact remnant of the original Cocos (Keeling) Islands flora. Before being visited by people, colonisation of North Keeling Island by plants and animals occurred only by wind, pelagic drift, flight or animal carriage. The origins and development of the flora and fauna of the island provide biologists with unique research opportunities into the origin of species and access to uniquely primitive species forms. Developing in isolation and with minimal human impact, Cordia subcordata, which generally occurs as a stunted shrub elsewhere, reaches the size of a large tree; the Pisonia grandis trees of the island are exceptionally taller than usual; and the coconut trees of the island are a rare source of one of the earliest forms of the species.

A strong focus of research and monitoring on North Keeling Island has been surveys and assessment of data associated with the red-footed booby population. These surveys have been conducted regularly since 1986. This ongoing program has become significant for monitoring one of the park’s key values and the ecological character of the Ramsar site.

Following the relocation of 39 Cocos buff-banded rails to Horsburgh Island in April 2013, monitoring of the translocated population will be paramount to determine the viability of establishing and maintaining a second population of this endemic threatened species. Efforts to establish a second viable population of the buff-banded rail, and associated research and monitoring, are key actions of the National Recovery Plan for the Buff-banded Rail. This has included monitoring of the park’s population, which is stable with an estimated population in 2013 of around 1,000.

The Round Island petrel (Pterodroma arminjoniana) was recorded on North Keeling in 1986 by Stokes and Goh (1987). There have been no sightings in Pulu Keeling National Park since the 1986 record and there is insufficient evidence to show that the Round Island petrel is a frequent visitor to or breeding on the island. Extensive searches undertaken in the years following its initial discovery failed to detect any presence of the petrel.

Other research and survey projects have included:

• repeat analysis of red-footed booby survey methodology and data

• turtle monitoring, with a focus in the southern Cocos Keeling Islands, with only irregular surveys occurring in the park.

• Cocos (Keeling) Islands quantitative baseline surveys for core marine reserves and a biosphere reserve on the southern atoll lagoon.

In 2009 the Island Wide Survey was first conducted, to establish baseline data on the presence of yellow crazy ants, weeds and other biodiversity data; it was repeated in 2012 to monitor changes and trends. Satellite imagery was also used to map vegetation on the island, supported by ground-truthing. The collection of this data has assisted in the weed control program and will be invaluable for future monitoring.  

The park provides opportunities for broader research projects that consider the regional and global context of the park and its biota. For example, ecological research on reefs and North Keeling Island, where human activity is controlled and minimal, provides good research opportunities to study largely intact reef systems. Monitoring to assess the status of and detect any changes to the marine environment, particularly those associated with human activity, is a high priority to facilitate proper management of the marine area of the park. Monitoring of marine habitats needs to be long term so that effects of natural disturbances such as cyclones, outbreaks of crown-of-thorns starfish or El Niño events, may be accurately recorded, and to help assess the impacts of fishing in the Cocos (Keeling) Islands region.

Although the research priorities identified in the previous plan were largely achieved and helped to assess the status of island biodiversity, securing funding and in-kind support for continued monitoring and research and implementing research recommendations remain relevant issues.

The Ecological Character Description for the Pulu Keeling National Park Ramsar Site (Hale 2010) recommended a number of actions necessary to identify indicator species for monitoring, and specific monitoring recommendations in relation to vegetation, invasive species, invertebrates, birds and marine species (see Table 1).

Table 1:            Ramsar monitoring needs for Pulu Keeling National Park

Component/process	Purpose	Indicator	Locations	Frequency	Priority
Vegetation – extent	Identified knowledge gap. Although there is no Limit of Acceptable Change for vegetation, survey data can inform on condition and extent of major vegetation types. This could be used as an indicator for seabird habitat in management planning.	Extent of broad vegetation types (pisonia, coconut, ironwood, octopus bush) by remote sensing	Entire Ramsar site	Every 5 years	Medium
Weeds	Determination of impact	Identifying and determining extent of weeds by land survey	Entire Ramsar site	Annual	Low
Yellow crazy ants	Determination of impact	Abundance; presence of scale insects	Pisonia forest	Every 2 years	High
Marine invertebrates – coral	Assessment against Limit of Acceptable Change	Coral extent and health	Existing Bunya coral site	Annual	High
Fish	Establishment of indicator species, and baseline on which a Limit of Acceptable Change can be developed.	Abundance and community composition	Reef	Every 2–5 years	Moderate
Waterbirds	Assessment against Limit of Acceptable Change	Counts and species identifications; breeding observations	Atoll	Annual	High
Marine turtles	Assessment against Limit of Acceptable Change	Nesting surveys	Northern and southern beaches	Annual	Moderate

Source: Hale 2010 Ecological Character Description for Pulu Keeling National Park: Note: These priorities do not represent or detail all monitoring requirements for the park.

Efforts during the life of the previous plan significantly contributed to filling some of these gaps, and extension of current ongoing monitoring may need to be considered to satisfy some additional requirements. Research proposals for the park will be guided towards these areas of priority, where feasible.

Under the EPBC Regulations (r.12.10) research may not be undertaken in the park unless it is provided for by, and carried out in accordance with, this plan. Research that involves killing, injuring, taking, trading, keeping or moving native species or is undertaken for commercial purposes is prohibited by ss.354 and 354A of the EPBC Act except in accordance with this plan.

Research that affects listed threatened species or ecological communities, listed migratory species, cetaceans or listed marine species must comply with Part 13 of the Act unless done in accordance with this plan. Any research must also address the relevant EPBC Act requirements relating to listed heritage places, including places on the Commonwealth Heritage List.

See also policy 3.1.2 with regard to actions undertaken by the Director and actions undertaken by persons authorised by the Director and Section 3.3, Research and monitoring.

Access to biological resources

Research or other approved activities may involve access to biological resources of native species. Access to biological resources (also known as biodiscovery) is the taking of biological resources of native species for research and development of any genetic resources, or biochemical compounds, comprising or contained in samples or specimens of these species.

Access to biological resources in Commonwealth areas such as the park is regulated under Section 301 of the EPBC Act and Part 8A of the EPBC Regulations. Key features of Part 8A in relation to Pulu Keeling National Park are set out in Table 2.

Biological resources are defined by the EPBC Act (s.528) as including genetic resources, organisms, parts of organisms, populations and any other biotic component of an ecosystem with actual or potential use or value for humanity. Genetic resources are defined as any material of plant, animal, microbial or other origin that contains functional units of heredity and that has actual or potential value for humanity. Part 8A of the EPBC Regulations (made under s.301 of the Act) controls access to biological resources in Commonwealth areas including Pulu Keeling National Park. Access to biological resources is also covered by ss.354 and 354A of the EPBC Act if the resources are members of a native species and/or if access is for commercial purposes. Any access to biological resources from the park must be in accordance with this plan.

This section should be read in conjunction with Sections 3.1 and 3.2.

Table 2:      Key relevant features of the EPBC Regulations on access to biological resources as they concern the park

1.   Any person who wants to access biological resources must obtain a permit from the Minister or authorised delegate.

2.   Written permission for the taking of biological resources must be obtained from the Director of National Parks, the ‘access provider’ for Pulu Keeling National Park.

3.   Where access is sought for commercial purposes or potential commercial purposes:

-    there must be a benefit-sharing agreement with the Director of National Parks

-    the benefit-sharing agreement must provide for reasonable benefit-sharing arrangements

4.   Where access is sought for non-commercial purposes:

-    a statutory declaration must be given to the Director of National Parks declaring, among other things, that any biological resources taken are not intended to be used for commercial purposes, that a written report will be given to the Commonwealth on the results of any research into the biological resources, that samples will not be given to other people (other than voucher specimens to a specified research institution) without permission of the Commonwealth and that the person(s) given access will not carry out, or allow others to carry out, commercial research or development unless a benefit-sharing arrangement is in place with the Director of National Parks.

5.   There must be an environmental impact assessment of the proposed access if it is likely to have more than negligible environmental impact.

Issues

• There is a need to monitor and maintain the ecological character of the listed Ramsar site.

• Scientifically robust evidence and information is needed for making conservation management decisions and to improve knowledge and understanding of the marine environment of the park.

• Research on North Keeling Island requires good collaboration and can be logistically challenging due to the park’s isolation and access difficulties, lack of freshwater and basic facilities.

• Effective methods are needed for storing and accessing research and monitoring data and results.

What we are going to do

Policies

3.3.1      Permits authorising research will be managed so as to:

(a)    address priorities identified in this plan

(b)    ensure minimal disturbance to the park and park operations

(c)    avoid potential adverse impacts to park values.

3.3.2      Permits may be issued for undertaking research where the proposed research:

(a)    cannot reasonably be done outside the park

(b)    is consistent with the management principles for the IUCN category of the zone of the park where the research is proposed to be carried out

(c)    is conducted by a researcher with appropriate credentials and experience

(d)    will not adversely affect natural and cultural heritage values of the park

(e)    will not threaten the conservation status of any species of flora or fauna

(f)     complies with the provisions of this management plan.

3.3.3      Researchers should provide the Director with reports and findings arising from research activities in the park, including rights to use and share the work where appropriate.

3.3.4      Research and monitoring that involves access to biological resources within the meaning of Part 8A of the EPBC Regulations must comply with those Regulations, in addition to the requirements of this section of the plan.

3.3.5      Research and monitoring priorities shall be regularly reviewed during the life of this plan to address key threats to the values of the park (also see 3.1.5).

Actions

3.3.6      Subject to available resources, collaborate with the scientific community, research organisations and other relevant agencies to undertake an effective research and monitoring program for the park to address the following priorities:

(a)   ecological and population surveys of red-footed boobies

(b)   ecological and population studies of the endemic Cocos buff-banded rail, including studies related to their relocation to the southern atoll

(c)   monitoring of land crab diversity, population and ecology

(d)   monitoring of the yellow crazy ant and scale insects, including assessment of the impacts of yellow crazy ants to, if required, inform control strategies

(e)   monitoring and mapping of island vegetation, including weed species

(f)     monitoring and mapping of the structure and morphology of the island and the central lagoon

(g)   monitoring of the population of marine turtles in the waters of the park and surrounding area, including nesting activity

(h)   monitoring of coral reefs and significant fish species, including marine species diversity and hybrid fauna, and to detect changes in coral reef ecosystem health

(i)     establishing and implementing a monitoring program of the ecological character of the Ramsar site to inform management activities

(j)     undertaking studies to assist with addressing emerging park management issues, such as monitoring methodology and strategies for controlling any newly introduced invasive species. This may include off-park studies.

3.3.7      Maintain a registry of scientific and research reports and articles relevant to the park.

3.3.8      Establish and maintain an effective and accessible system to store and manage research data using relevant computerised databases and a geographic information system (GIS).

1. Cultural heritage management

Objective

The park’s cultural values are protected and conserved.

Performance indicators

The following indicators will be used under this plan to measure performance in cultural heritage management:

• The condition of significant cultural heritage sites is inspected and maintained.

Cultural heritage site management4.1       

Background

The park is a listed place on the Commonwealth Heritage List under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) for its natural and cultural heritage significance (see Appendix D for the basis of listing).

Previous human activity in the park has included visits by Cocos-Malay workers and actions associated with the two world wars. These activities have left various relics of value and interest.

The graves of a Malay woman and girl who died from beri-beri, a dietary deficiency, in the late 19^th century are located near the southern shore. There is a third grave on the island, that of a man who died in an accident (Bunce 1988).

There is evidence of several wells close to the lagoon edge created by Malay workers using basic tools in an attempt to source underground water.

There is also evidence of two base camp sites that were inhabited during coconut and wildlife collecting trips. One is in vegetation situated within metres of the landing site and the second is at the western side of the lagoon edge where the railway ends. Wooden stumps that would have supported large huts are still in place. Scattered around them are old bottles, equipment and timber debris. The railway track that joined these base camps was a section of small-gauge track that used a trolley cart; its east–west traverse assisted workers shifting bags of husked coconuts to the landing site.

The resting place of the World War I German raider SMS Emden is located on the reef off the southern end of the island. The Emden is a historic shipwreck under the Historic Shipwrecks Act 1976 and a protected zone has been declared around it under that Act.

During the operation to salvage the SMS Emden, the small-gauge railway track on the island was extended as far south as possible to access the wreck site.

A World War II De Havilland Mosquito aircraft, A52-606, from 87 Squadron, failed to reach West Island airstrip and crash-landed on the east coast of North Keeling Island in June 1945. A section of the engine is still visible at the crash site.

Issues

• A number of historic and cultural sites in the park, including portable artefacts of heritage significance, are difficult to locate, may be fragile and require appropriate protection from the impacts of visitors.

• The cultural heritage artefacts are to remain in situ and will be exposed to extreme weather events, salt air and saltwater. Natural deterioration will continue to degrade the condition of artefacts, particularly those constructed of timber and metal; this is an acceptable natural process.

What we are going to do

Policies

4.1.1      The heritage values of the park will be managed in accordance with relevant Commonwealth Heritage management principles (Appendix D) and the Historic Shipwrecks Act 1976.

4.1.2      Disturbance to cultural sites and artefacts of heritage significance in the park should be avoided so far as is practicable, or minimised.

4.1.3      Only essential protection and conservation activities will be carried out for cultural sites and artefacts of heritage significance in the park; these may include activities necessary to stabilise, maintain or restore condition.

4.1.4      The Cocos-Malay community, through the Pulu Keeling National Park Community Management Committee, will be consulted regarding the care of the Malay graves on North Keeling Island.

Actions

4.1.5      Work with relevant experts and stakeholders, including the Territory Administration, the Cocos (Keeling) Islands Shire Council and the Cocos-Malay community, to identify, document, assess and protect the values of cultural and historic sites within the park.

4.1.6      Develop and maintain a register of heritage sites and artefacts for the park which includes an inspection and maintenance schedule.

1. Visitor management and park use

Objective

A limited range of opportunities are available during the life of the plan for rare, unique, educational and safe natural and cultural focused experiences without disturbing park values.

Visitor access and use5.1       

Background

The majority of visits to the island are by park staff undertaking park management activities. Periodically, tourists also visit the island, either guided by tour operators under a valid permit, or accompanying park staff. Access onto North Keeling Island can be hazardous as it normally involves a swim from a boat across the reef to the shore. There are no roads or tracks on the island and boats are not allowed to approach the shore or land on the island. When walking on the island, park staff and visitors follow either the lagoon edge or the coastline to avoid impacts on vegetation and habitat.

It is not feasible to install and maintain facilities to improve the ease of access to the island, and such development could significantly impact the values of the park and would not be compatible with its strict nature reserve zoning.

Human disturbance of seabird colonies has the potential to decrease the recruitment of juvenile birds into the population or to increase adult mortality (WBM Oceanics Australia 1995). Four strategies were developed to guide the Director in managing visitor access and use under the previous management plan, and to inform the public. The strategies prescribe conditions for visitor access, boating, recreational fishing and scuba diving, and represent codes of conduct for minimising impacts on the values of the park. These strategies will continue to apply during this life of this plan and may be reviewed. Permit conditions require observance of the strategies.

Cocos-Malay people have relied on marine wildlife for a major part of their food supply since settlement in the 1820s. The cultural tradition of catching a large number of fish to provide as gifts remains strong. On the southern atoll, there has been a steady rise in fishing since the 1980s. However, due to the difficulties of access, the fishing, harvesting and collecting of North Keeling Island’s marine resources by the local community and visitors has been limited. Prior to the declaration of the park, fishing was allowed to within 100 metres of the shoreline.

The previous management plans for the park restricted fishing to trolling only, to minimise impacts of fishing on reef fish species. This policy will continue under this management plan in order to protect and conserve marine species within the park.

As noted in Section 4.1 of this plan, the SMS Emden is an historic shipwreck under the Historic Shipwrecks Act 1976 and a protected zone has been declared around it under the Act (see also Map 4). The power to grant permits to access the protected zone surrounding the Emden under the Historic Shipwrecks Act 1976 lies with the Commonwealth Historic Shipwrecks Delegate, who at the time of writing this plan was the Commonwealth Shipwrecks Officer within the Department.

The Environment Protection and Biodiversity Conservation Regulations 2000 (EPBC Regulations) prohibit a person who is fishing to use underwater breathing apparatus or fishing equipment other than lines, hooks and lures. The Regulations also prohibit the use of live bait or native species as bait (other than a species of fish), and cleaning or filleting fish within a marine area. Under r.12.35, the Director may prohibit fishing in the park or determine restrictions on fishing.

The EPBC Regulations (rr.12.23 and 12.23A) enable the Director to restrict entry to areas in the park on a temporary or permanent basis, and to prohibit or restrict activities or classes of activities within all or part of a Commonwealth reserve. In addition, the Director may implement temporary or long-term closures of areas in the park if an activity or access has the potential to impact on park values or poses a risk to public safety, or if required for management purposes. In these circumstances every effort is made to inform visitors and tour operators as soon as possible.

The EPBC Regulations also include provisions that prohibit or regulate other visitor and recreation activities in the park, including, but not limited to, public gatherings of more than 15 people and the use of vessels.

Issues

• The natural and cultural values of the park are vulnerable to visitor impacts, including through the accidental introduction of invasive species and pathogens to the park.

• Access to the park is difficult and can present a number of hazards to visitors.

• Some visitors to the Cocos (Keeling) Islands may have an expectation that unrestricted access will be available to the park for recreational and cultural purposes.

What we are going to do

Policies

General – Access

5.1.1      Disturbance to wildlife, particularly the seabird colonies, Cocos buff-banded rail and robber crab, by park visitors will be minimised by maintaining and enforcing strict controls on visitor access and behaviour.

5.1.2      Subject to the provisions of this section, access to the park by the public is limited to persons:

(a)     in the company of park staff; or

(b)     authorised by a permit issued by the Director under the EPBC Regulations

(c)     carrying on or taking part in authorised commercial activities for which a permit has been issued (see Section 5.2, Commercial tourism and other commercial activities).

5.1.3      Decisions about permits to access the park will be subject to consideration of the carrying capacity of the park, the risk associated with the activity and the potential impact on park values. Limits may be placed on the numbers of visitors and the frequency of visitation, and approval may not be given to large groups (see also Section 7.1, Assessment of proposals).

5.1.4      Persons accessing North Keeling Island for recreational purposes will be required to walk only on beaches and designated access routes.

5.1.5      Other than for research purposes, permits for entry to North Keeling Island will only be issued for observation, study and quiet enjoyment of the island’s natural and cultural values.

5.1.6      If the frequency of visitation to the park increases significantly, or if a long-term research or management program requires visitors to stay overnight for long periods, actions to monitor, assess and, where required, minimise impacts of park visitors will be undertaken.

5.1.7      Persons holding a permit for scuba diving, snorkelling, surfing or recreational fishing in the park are prohibited from accessing North Keeling Island or the lagoon unless specifically provided for in their permit conditions.

5.1.8      Permits authorising access to the park for the purpose of carrying on activities within the protected zone declared around the wreck of the SMS Emden under the Historic Shipwrecks Act 1976 will be subject to possession of any permit required for the proposed activities under that Act.

Commercial activities

See section 5.2.

Camping

5.1.9      Camping is not allowed on North Keeling Island except by persons participating in research or park management activities.

Recreational fishing

5.1.10   Recreational fishing may be carried out in the marine reserve zone of the park only if it is considered to be sustainable, does not impact on the park’s values and is in accordance with the conditions of a permit issued by the Director, subject to any determinations issued by the Director under r.12.35 of the Regulations, and subject to the following limitations:

(a)    fishing must not be undertaken within 100 metres of the shoreline

(b)    only fin-fish may be taken

(c)    only pelagic fish may be taken

(d)    fishing must only be carried out by trolling or deep-water fishing and not by bottom fishing.

5.1.11   Where consistent with this plan and the conservation of marine species, fishing permit conditions may be aligned to the number, size and type of fish described in the fishing regulations applicable to surrounding territorial waters, under the Fish Resource Management Act 1994 (WA), subject to additional restrictions made to protect the marine biodiversity of the park.

Operational management

Aim: To manage the park in an effective and efficient manner and in accordance with the obligation under the management plan and the lease agreement.

Status: Healthy

Trend: Stable

Rationale

PKNP was managed in accordance with the management plan, lease and other legal obligations. Most management plan actions were complete or progressed.

While loss of local staff reduced the local capacity to implement some management plan operations/prescriptions, increased staff support from CINP enabled the Island Wide Survey to be conducted in 2009.

Resource use in park operations

Aim: To ensure best practice use of resources.

Status: Healthy

Trend: Stable

Rationale

An energy audit was conducted annually and actions to minimise resource use are taken (within the capacity to do so – e.g. bicycles are used as transport where possible). Some responses, such as the use of alternative energy, require island-wide responses.

Capital works and infrastructure

Aim: To provide visitors and staff with safe, functional facilities to the best possible standard with minimal impact on the environment. To ensure an effective and efficient maintenance program that protects park assets.

Status: Healthy

Trend: Stable

Rationale

There is minimal infrastructure in the park. However, requirements of the management plan in relation to capital works and infrastructure were met.

Compliance and enforcement

Aim: To encourage compliance with relevant legislation, protect the park environment and encourage and promote appropriate use and appreciation of the park.

?

Status: Unknown but an issue of ongoing concern

Rationale

Poaching of seabirds and illegal fishing occurred, as evident by the presence of seabirds on Home Island. It is difficult to know what the status/trend of these activities is and what their impacts are.

Compliance activities were refocused from a law enforcement approach to an educational approach which helped build better relations with the community. The results of this approach in relation to reducing illegal activities are yet to be determined.

Congress was provided with funds to prepare a management plan for red-footed boobies for consideration for approval under the EPBC Act.

Environmental assessment and approval

Aim: To protect and manage the park to preserve its undisturbed condition.

Status: Healthy

Trend: Stable

Rationale

No significant or unacceptable environmental impacts from the establishment of infrastructure, implementation of park operations or conducting of activities were detected/known to have occurred.

Financial management

Aim: To responsibly manage Cocos (Keeling) Islands conservancy to ensure the aims of this plan are met in a way which maximises the benefit to conservation programs, the community and visitors to the park.

Status: Healthy

Trend: Stable

Rationale

The park’s resources and finances were managed in accordance with the Chief Executive Officer’s instructions.

Performance assessment

Aim: To evaluate progress in implementing this plan and to conduct a final technical audit of the implementation of the plan.

Status: Healthy

Trend: Stable

Rationale

Park operations were all consistent with and/or identified in the management plan and implementation schedule.

A management plan implementation schedule was prepared but the schedule was not fully maintained for the life of the plan, possibly due to reduced staffing levels.

A technical audit was undertaken in 2010 (the plan’s sixth year) in consultation with the PKNPCMC, and the Director also prepared annual reports on the management of PKNP.

The complete audit document can be accessed from: cellpadding="0" cellspacing="0">

Status is critical

Trend improving

Status is of concern

Trend stable

Status is healthy

Trend declining

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