These Themes explore the human dimensions of water quality improvement, from the effectiveness and efficiency of policies, programs and instruments designed to motivate adoption of land management approaches for improved water quality, to the conditions that engender practice change, and how to more effectively engage and involve Traditional Owners in decision-making for the Great Barrier Reef. The emerging science Theme explores the broader co-benefits for people and the environment of water quality improvements, and how global approaches to monitoring and evaluation could help further strengthen the monitoring, modelling and reporting programs that underpin water quality improvements on the Great Barrier Reef.
Scope
The diagram below shows the scope of the human dimensions of water quality improvement Theme. It represents the overall context for water quality improvement programs and instruments, the factors that influence the uptake of management practices to improve water quality at various levels (macro, meso and micro levels), and includes a review of the success factors for greater Indigenous involvement in water quality decision making.
Aboriginal artwork prepared by Conway Burns, Dugoo Duwalami – Heart meeting place.
The central component of the artwork is the roundtable for the Great Barrier Reef with various seats around the table representing various institutions involved in decision-making and management. The upper half of the artwork represents the extensive pathways of engagement and involvement that the decision-making bodies for the Great Barrier Reef have travelled on, prior to the seat at the roundtable.
The opaque section (top middle) represents diverse Traditional Owner groups that have not been effectively involved or engaged in decision-making for the Great Barrier Reef over a long period of time. Once resources towards building the presence, literacy, capacity and capability of Traditional Owners within existing Great Barrier Reef management frameworks are implemented, the head of the Rainbow Serpent (Yindinji – Butchulla) is set in motion.
The roundtable is now complete and two-way knowledge sharing ensues, where Traditional Owner groups are familiar with all legislative, policy and funding frameworks underpinning management of the Great Barrier Reef, and the primary concept of connectivity from freshwater headwaters, through diverse habitats and peoples, down to the Great Barrier Reef (light blue dots) is aligned to decision-makers and decision-making for the Great Barrier Reef.
Dugoo Duwalami ensures improved holistic outcomes for the species, habitats and people connected to the Great Barrier Reef through truly collaborative management.
The diagram below shows the scope of the emerging science Theme. It represents the Great Barrier Reef catchment and marine environment and shows elements of the questions within this Theme, including potential co-benefits of land management to improve water quality outcomes (note that socio-economic benefits are covered in other Themes), and attributes of successful Monitoring & Evaluation programs to support coastal and marine water quality management in the Great Barrier Reef.
Context
Declining water quality in the Great Barrier Reef was formally recognised by the Australian and Queensland Governments in 2003 under the first Reef Water Quality Protection Plan. Since then, there has been considerable investment to develop programs and instruments that generate water quality benefits through the adoption of land management practices in agricultural and non-agricultural lands. Outcomes have been mixed and therefore it is important to consider the whole policy and innovation process that defines management practices and designs the instruments for delivery, identify the levers or mechanisms that can accelerate adoption, and to understand the behavioural, economic, social and cultural factors that hinder or enable the uptake of management practices for water quality improvement.
There is an increasing commitment by those working in Great Barrier Reef water quality policy and management to more effectively engage and involve Traditional Owners, and specifically, integrate Indigenous people and knowledge into decision-making frameworks for the Great Barrier Reef. Options identified to progress this objective include direct consultation and broader engagement via the update of the Reef 2050 Water Quality Improvement Plan, but drawing on published evidence could also provide useful insights from elsewhere in Australia and around the world in setting the direction for future work.
Management actions for water quality improvement can provide financial returns to agricultural sectors and other industries such as tourism and fishing in the Great Barrier Reef. Additional co-benefits of these actions can be direct, where the land management practice leads to improvements in agricultural production, or indirect through for example, changes in vegetation structure and composition leading to increased biodiversity or carbon sequestration in the soil. The co-benefits can be private such as productivity benefits, or public such as environmental or Indigenous outcomes. These opportunities are of significant and increasing interest to the wider community and require a holistic catchment to reef approach to management. Monitoring and evaluation of projects and programs designed to improve coastal and marine water quality also need to be holistic and are an essential part of collaborative planning and design, and for assessing environmental, social and management change, tracking progress towards program objectives and targets and informing and improving decision making. Learnings from successful approaches to monitoring and evaluation in the Great Barrier Reef and around the world are highly relevant to the future management of the Great Barrier Reef.
The synthesis of the evidence for the human dimensions of water quality improvement Theme included a total of 311 studies extracted and synthesised for 3 questions. This Theme reviews the evidence on the programs and instruments used to drive improved land management actions for water quality benefits in the Great Barrier Reef (Q7.1), identifies the behavioural, economic, social, and cultural factors that hinder or enable the uptake of management practices to improve water quality outcomes (Q7.2) and the critical success factors for greater Indigenous involvement in water quality decision making in the Great Barrier Reef (Q7.3).
The emerging science Theme included a total of 341 studies, extracted and synthesised for 2 questions. The questions in this Theme identify future directions and emerging opportunities in Great Barrier Reef water quality management including a review of the evidence of the potential co-benefits (such as biodiversity, carbon and productivity) of land management to improve water quality outcomes for the Great Barrier Reef (Q8.1), and the key attributes of successful monitoring and evaluation programs to support coastal and marine water quality management (Q8.2). Both questions are highly relevant in the context of increasing pressures from climate change and the need to accelerate water quality improvements.
Summary statement for Human dimensions of water quality improvement and emerging science
The synthesis of the evidence for human dimensions of water quality improvement included a total of 311 studies extracted and synthesised for 3 questions and the emerging science Theme included 341 studies extracted and synthesised for 2 questions (with some overlap in evidence between questions). Convergence was reached for this Summary Statement among all authors within the Expert Group for these Themes.
The summary of findings relevant to policy or management action are:
- The Australian and Queensland governments have invested AUD$1.1 billion over the last 20 years to improve Great Barrier Reef water quality through a range of initiatives focused on the management of private land under the Reef Trust Program, Reef Trust Partnership (Australian Government) and the Reef Water Quality Program (Queensland Government). Investment has focused mostly on instruments of extension (51%) and financial instruments with extension (36%), followed by physical works such as on-ground gully remediation (5%), regulation and compliance (4%) and financial instruments in the absence of extension (3%). Investment has also been made into the innovation processes needed to develop the improved management practices but quantification of the level of investment is not available. Most of the investment has been in the sugarcane and grazing industries. Conclusions on which programs and instruments are most effective for driving changes to land management practices to improve water quality are limited by data and information that met the peer review standard required for inclusion in the Scientific Consensus Statement [Q7.1]
- The most well-developed and consistently applied understanding of the cost-effectiveness of water quality outcomes has been conducted for Reef Trust investments. For grazing, cost-effectiveness ranged from AUD$16 per tonne to AUD$17,000 per tonne of fine sediment removed. For sugarcane, cost-effectiveness ranged from AUD$49 to AUD$554 per kg of dissolved inorganic nitrogen removed. Effectiveness has only been assessed in terms of the estimated pollutant load reductions and other benefits, such as broader social change or capacity building, have not yet been included in evaluations of effectiveness. [Q7.1]
- For urban land uses, Regional Partnerships and the associated Regional Report Card initiatives are creating a forum for benchmarking urban water management activities. The Urban Water Stewardship Framework can be used to rate relative risk to water quality from urban water management activities and identify what aspects need improvement. A “C” or Moderate ranking was achieved for overall urban water management in 2021, indicating that as a collective, councils were meeting current minimum industry standards, but were not yet at best practice management level. [Q7.1]
- The factors that influence the uptake of management practices to improve water quality operate at various levels. These levels can be described as ‘macro’ (governance, culture, media, economics, policy and legislation), ‘meso’ (industry, research and development agencies and community), ‘micro’ (individuals and relationships to people) and practice or behaviour characteristics. The macro context, which includes the enabling environment and governance systems, directs and moulds what occurs at each level and hence influences efficiency and effectiveness. [Q7.2]
- Landholder distrust and suspicion of certain groups including government, scientists involved in Great Barrier Reef research, and program delivery organisations, is a key factor hindering uptake of management practices. To overcome this distrust, management practices for agricultural and urban land managers should be developed, tested and scaled using collaborative processes that actively involve key actors in the relevant communities, value chains and innovation systems, from planning through to evaluation. Context and the processes used to engage with the land managers are critical to development and uptake of management practices. However, factors that may be associated with improved uptake include levels of human and social capital, economies of size, presence of trusted advisors and bottom-up development of practices. [Q7.2]
- While real and perceived economic factors are important to landholder decision making, even profitable practices can take time to be adopted because of the interactions within and between economic factors and landholders, research, extension, industry and community attitudes and systems. Less profitable practices are likely to take even longer and will require further development of approaches, supporting policies and instruments. [Q7.2]
- Additionally, for all land uses, demonstrating links between practice change and improved water quality outcomes was identified as an important factor that could enable practice adoption. Other factors for sugarcane include social norms, adoption costs, compatibility with farming systems, economies of size effects, and the interaction of technology characteristics and context. For grazing, factors include the interaction of weather and climate with property and decision-maker context, financial and other support over time, transaction costs and skills required. For urban, social resilience, and innovative and adaptive capacity may be important factors. [Q7.2]
- Determining the critical success factors for greater Indigenous involvement in water quality decision making and management for the Great Barrier Reef requires Indigenous knowledge and input. Currently, there is a lack of peer reviewed and published material related to Indigenous knowledge and water quality improvement in the Great Barrier Reef. However, several critical factors and key learnings were identified from national and international studies. These include increased understanding and knowledge of Indigenous culture and connection to country, helping to establish trust and respect between all partners through relationship building, support for increased capacity to engage and become involved in programs, support for improved capability to collaborate and deliver across all aspects of planning and delivery, and adoption of an adaptive management approach to program delivery. [Q7.3]
- The co-benefits of land management practices for water quality improvement vary spatially with bioregions, land use and landscape connectivity and the specific co-benefit being sought such as biodiversity, soil carbon and productivity. Potential co-benefits of management practices within the Paddock to Reef Water Quality Risk Framework have been identified for the major land uses in the Great Barrier Reef catchment area. For example, reductions in grazing pressure and changes in the timing of grazing lead to increased vegetation cover, particularly of perennial grasses, which improves water infiltration and reduces runoff, and can lead to improved soil carbon and biodiversity. In sugarcane and grain cropping systems, improved nitrogen management (type, timing, and quantity applied) can reduce nitrous oxide and greenhouse gas emissions. The use of break-crops, rotations, controlled traffic farming, and trash blanketing, has demonstrated benefits for soil health. For horticulture, maintaining ground cover, inter-row, and headland management, can also support biodiversity outcomes by providing habitat or, for example, reducing pollutant runoff into aquatic ecosystems. However, there are few studies that specifically evaluate these co-benefits. Furthermore, whole of life cycle analysis is required for optimising the outcomes of co-benefits, supported by alignment of on-ground and management investment frameworks. [Q8.1]
- Systematic and consistent monitoring and evaluation of projects and programs designed to improve water quality is essential to assess environmental, social and management change, track progress towards program objectives and targets, and inform and improve decision making. Attributes of coastal and marine water quality monitoring and evaluation programs that have successfully driven positive change for management include: those that adopt the system drivers, pressures, state, impact and responses (typically shortened to DPSIR) framework; recognise ecosystem services and marine natural capital; adopt multidisciplinary frameworks; report on the interactions between environmental and human health; and support connections between people and the Great Barrier Reef through the use of citizen science and greater involvement in decision making processes. [Q8.2]
- The Reef 2050 Integrated Monitoring and Reporting Program and the Paddock to Reef Integrated Monitoring, Modelling and Reporting programs are among the most comprehensive and integrated catchment to reef monitoring programs in the World. These programs recognise links between drivers, pressures and state through the reporting of environmental, social and economic indicators. However, the connections between environment and people could be strengthened with greater recognition that human wellbeing is intrinsically linked to the health of Great Barrier Reef ecosystems. Potential improvements drawn from global evidence base include greater recognition and quantification of complex social, cultural, economic and environmental values and their interconnections, extension of existing multidisciplinary frameworks to incorporate human health, and enhanced community engagement including direct participation in monitoring programs. [Q8.2]
Confidence
The confidence rating of the questions for human dimensions of water quality improvement and emerging science was Limited for the Indigenous involvement question, and Moderate for the other questions, mostly due to the limited availability of Great Barrier Reef-specific peer reviewed literature on these topics, and Moderate consistency across study findings.
Strength of evidence
The findings in these Themes are underpinned by a growing body of evidence, including multiple lines of evidence (i.e., quantitative, qualitative and experimental research, observations, modelling and reviews or other secondary studies). However, there is a large body of evidence in unpublished literature for the questions within these Themes which potentially constrains the findings. The strength of evidence across these Themes, considering the confidence, quantity and diversity of study types, is Moderate, with limited peer reviewed evidence around the mix of programs to drive improved water quality benefits, and the question on the factors of success in Indigenous engagement in water quality management and decision making.
Key uncertainties
The key uncertainties of the evidence identified for human dimensions of water quality improvement and emerging science relevant to policy and management included the lack of standard collaborative approaches to plan, monitor, evaluate and report on effectiveness of programs; very limited evidence on factors influencing uptake in urban environments, particularly at the practice to meso-level; overall, limited Great Barrier Reef-specific peer reviewed literature on human dimensions of water quality management (e.g., effectiveness of regulations and extension, disadoption) and factors contributing to successful Indigenous involvement in water quality management; and limited evidence of the flow-on effects of biophysical co-benefits on social and economic outcomes. The body of evidence presented in the review of success factors for Indigenous involvement is inherently limited by the scope of the question posed, and the findings presented within peer reviewed publications, some of which may not be directly appropriate for Traditional Owners in Australia. Further engagement with local Traditional Owner groups to determine the successes and learnings from existing engagements within the Great Barrier Reef context is necessary to fully address the question.
Recent findings
Recent findings continue to reinforce that the ongoing protection and restoration of the Great Barrier Reef, including water quality management, is a ‘wicked’ problem, which requires adoption of transdisciplinary innovation processes. Evidence of mistrust between farmers, government and scientists has become more evident, with multiple studies identifying mistrust as a major factor hindering the uptake of management practices to improve water quality outcomes. The focus to date on individual factors influencing adoption, which are varied and context specific, downplays the higher level (e.g., governance and industry) policies and practices that can increase mistrust. Despite the complexity, time and cost involved, the solution requires high levels of engagement, partnering and collaboration, along with transdisciplinary and multidisciplinary planning, research and development processes, to deliver the best outcomes.
Recent research has also focused on Indigenous participation in environmental management and decision-making, documenting key learnings from proposed and ongoing collaborative work from around the world. Collaborative decision-making is crucial for Great Barrier Reef management, but there have been both successes and failures in engaging stakeholders and improving water quality. Global experiences reinforce that integrated adaptive catchment management can be strengthened by greater understanding of the linkages between biophysical, social and economic systems, supported by robust monitoring and evaluation of these factors. This integrated approach will also support the identification, development and implementation of co-benefits. The role of the community and stakeholders in monitoring and evaluation programs for coastal and marine water quality programs is also receiving greater recognition globally and is highly relevant to the Great Barrier Reef.
Knowledge gaps
For human dimensions of water quality improvement and emerging science, the areas where further knowledge is needed that are most relevant to policy and management include:
- How collaborative and transdisciplinary innovation systems can be incorporated into the support of management practices that bring economic, environmental, cultural and social benefits.
- The effectiveness of programs and instruments to drive improved land management action for Great Barrier Reef water quality benefits, in terms of type and extent of change, success metrics across different scales (among different audiences), as well as potential water quality impact (ideally beyond the life of programs or projects) using an agreed consistent approach.
- Ongoing review, development and evaluation of collaborative monitoring and evaluation processes (in different contexts) for the macro governance system, the innovation process system, industry, research development, extension and farming systems.
- Strategies for scientists, extension staff, policy and management professionals to communicate key messages about Great Barrier Reef water quality in the current media environment.
- How to link scaling processes to the innovation processes so that they lead to improved uptake of management practices.
- Approaches for integrating Traditional Ecological Knowledge and western science.
- Greater understanding of co-benefits generated from engagement in programs and instruments (human and social capital), and assessment of the opportunities to maximise co-benefits of water quality improvement practices from all land uses and under a range of future climate scenarios.
Summary information for Human dimensions of water quality improvement and emerging science
The table below summarises the evidence appraisal indicators and confidence ratings in the evidence base for each of the Questions within these Themes. The Confidence rating was determined by the overall relevance of studies to the question and the consistency of the body of evidence (see the Glossary for explanation of indicators). Note: In Diversity of items: Experimental (E), Mixed (X), Modelling or Remote sensing (M), Observational (O), Quantitative (Q), Qualitative (L), Reviews (R), Secondary data analysis (S-A), Theoretical or Conceptual (T).
| Question | Quantity of items | Diversity of items | Overall Relevance | Consistency | Confidence |
| What is the mix of programs and instruments (collectively and individually) used in the Great Barrier Reef catchments to drive improved land management actions for Great Barrier Reef water quality benefits and how effective are they? [Q7.1] | Low (86) |
Moderate – High (80% O, 20% M) |
Moderate-High | Low-Moderate | Limited-Moderate |
| What are the behavioural (attitudinal), economic, social and cultural factors that hinder or enable the uptake of management practices that aim to improve water quality outcomes for the Great Barrier Reef? [Q7.2] | High (106) |
High (29% X, 12% S-A, 17.5% Q, 15% L, 9% R, 17.5% T) |
High | Moderate | Moderate |
| What are the critical success factors for greater Indigenous involvement in water quality decision making in the Great Barrier Reef region? [Q7.3] | Low (119) |
Low (30% O, 70% R) |
Low | Moderate | Limited |
| What are the co-benefits e.g., biodiversity, carbon, productivity, climate change, and drought resilience, of land management to improve water quality outcomes for the Great Barrier Reef? [Q8.1] | Moderate (97) |
High (46% E, 40% R, 9% O, 5% X) |
Moderate | Moderate | Moderate |
| What are the key attributes of successful monitoring and evaluation programs to support coastal and marine water quality management, and what examples are there of innovative monitoring and evaluation frameworks, methods and approaches that are applicable to the Great Barrier Reef? [Q8.2] | High (244) |
High (48% R, 32% O, 15% E, 5% M) |
High | Moderate | Moderate |
Theme questions
