Australian Fossil Mammal Sites (Riversleigh / Naracoorte)

A number of framework documents guide the management of the component sites of this serial World Heritage site.
DES is currently in the process of generating a separate and contributing methodology to park management plans for all national parks in Queensland through the development of QPWS’s Values-Based Management Framework (VBMF) (Queensland Government, 2019). The VBMF for Boodjamulla National Park, within which the Riversleigh component is located, is currently in draft and is an adaptive approach to meeting park planning and management accountabilities. The VBMF for Boodjamulla National Park incorporates a strong emphasis on managing threats to key values, including World Heritage, maintaining environmental integrity, promoting healthy ecosystems and undertaking active management of pests, weeds, fire and visitation (IUCN Consultation, 2020).
The Boodjamulla (Lawn Hill) National Park and Resource Reserves Management Statement (QPWS, 2013) sets high-level strategies and priorities for managing the national park of which Riversleigh is a part. The Queensland Government’s DES, through the QPWS, effectively resources day-to-day management activities. The strategic management of Riversleigh is administered by the DES World Heritage Unit. The Australian Government funds an Executive Officer who provides the secretariat support and operation of the Riversleigh World Heritage Advisory Committee (IUCN Consultation, 2017).
At Naracoorte, management is guided by the Naracoorte Caves National Park Management Plan, 2001 (Department for Environment and Heritage, 2001). The South Australian Government, through the Department for Environment and Water, resources day-to-day management activities and provides strategic management, with advice from the federally-funded Naracoorte Interagency-Community Reference Group and its Executive Officer (IUCN Consultation, 2019).
The Australian Fossil Mammal Sites (AFMS) Framework is currently in draft and will coordinate management across both Riversleigh and Naracoorte. The AFMS Framework will complement existing legislative structures and other regimes to address Australia’s international responsibilities under the Convention Concerning the Protection of the World Cultural and Natural Heritage (the World Heritage Convention) and will describe how the existing management and governance arrangements provide for the long-term collaboration, protection, conservation, presentation and transmission of the values of the AFMS World Heritage site.
The AFMS Framework will provide overarching guidance for management of AFMS, while more detailed management objectives and strategies for Riversleigh and Naracoorte are provided in the site-specific Strategic Management Plans prepared by the Queensland and South Australian State government agencies (IUCN Consultation, 2020).
The signatories to the Framework will work cooperatively to share information and develop appropriate strategies for the benefit of the AFMS. Respective State governments will continue to undertake regulatory and day-to-day management, but with a greater level of coordination and consistency. Cooperative opportunities include the development of promotional and interpretative material, research and information exchange, and sharing of expertise and resources to protect, conserve, present and transmit values.
Cross collaboration through regular Coordinating Committee meetings (Executive officers and Management representatives from both QLD and SA) and World Heritage Advisory Committee meetings, where appropriate (IUCN Consultation, 2020).
 

There is a suite of legislation in place that provides suitable support for protection and management. There are regular site inspections, flood control measures (for Naracoorte) and a prescribed burning programme designed to mitigate any negative effects associated with wildfires. Management of both components of this serial site appears effective. The QPWS Boodjamulla (Lawn Hill) National Park and Resource Reserves Management Statement 2013 provides management effectiveness evaluation. Management effectiveness will also be reported on in Queensland’s State of the Parks Reporting (2023 and onwards). While there is no single management plan for the entire World Heritage site, consultations are ongoing on finalising a draft AFMS Framework. Once finalised this Framework will complement existing legislative structures and other regimes to address Australia’s international responsibilities under the World Heritage Convention (IUCN Consultation, 2020). Such a strategic framework for the entire site would further strengthen its management.

The boundaries of the Naracoorte Caves National Park do not match those of the caves in which the fossil deposits occur, although the entrances to the caves are protected. Since the World Heritage inscription, the boundaries of the National Park have been expanded and cover most known caves within the park, and also now include many other caves that were not part of the park at the time of inscription. Some of these ‘new’ caves are of very high scientific value, containing further extensive fossil deposits. The World Heritage site now only represents a sub-section about half the size of the total National Park area.
The Riversleigh component (approximately 10,000ha) sits within the boundary of Boodjamulla (Lawn Hill) National Park (approximately 380,000ha). Access to the only publicly available site is across the neighbouring pastoral lease (held by the Lawn Hill Riversleigh Pastoral Holding Company (LHRPHC)), as is access to the remainder of the World Heritage site (utilised by QPWS and scientific permit holders). QPWS negotiate access through informal agreement with the LHRPHC as required. The boundary, while adequate for the protection of values, is not entirely adequate for security of long-term public and scientific researcher access and presentation of the values (IUCN Consultation, 2019).

The Australian and South Australian governments endorsed The Naracoorte Caves National Park Management Plan (Department for Environment and Heritage, 2001) in February 2001 following a lengthy period of community consultation.
The South Australia Heritage Act, 1993 provides for the conservation of places of heritage value and the Development Act 1993 provides for planning and regulating development, the management of land, and the design and construction of buildings.
The Boodjamulla (Lawn Hill) National Park, in which the Riversleigh component is located, has a Management Strategy in place. The Riversleigh Management Strategy (Queensland Government and Environment Australia, 1993) (subsequently renamed the Riversleigh Strategic Management Plan – RSMP) is currently under review (IUCN Consultation, 2019).

The Queensland Department of Environment and Science (DES) recognises that First Nations Peoples have rights and interests in Country listed for World Heritage values. Two Waanyi representative positions are held on the Riversleigh World Heritage Advisory Committee (RWHAC). These representatives are nominated by the Waanyi Native Title Aboriginal Corporation (Registered Native Title Body Corporate) that represents the Waanyi peoples. The RWHAC assist in meeting the obligations under the World Heritage Convention and the  Commonwealth EPBC Act 1999 and provide advice to the management agencies and the Queensland and Australian Government Ministers responsible for World Heritage. DES is working to incorporate First Nations priorities and perspectives in decision-making and operations through The Gurra Gurra Framework 2020-2026 (The Framework), a ‘whole of department framework that prioritises co-management of business with First Nations partners, including the business of World Heritage’ (Queensland Government, 2020).
The RWHAC also includes representation from the scientific community (palaeontology, archaeology, geology, speleology, geochronology, hydrology, zoology, botany), Queensland Museum, commercial tourism and the Queensland government tourism body Tourism and Events Queensland, Local Councils, local landholder representatives, and Queensland and Australian governments.
The First Nations Peoples of the Naracoorte area are the Potaruwutij to the North, Jardwadjali to the East, Boandik to the South and Meintangk to the West. Naracoorte Caves feature in Dreaming tracks, and some of the wildlife species that inhabit the caves are culturally significant.
The South Australian Department for Environment and Water recognises First Nations Peoples’ connection to country, strength and resilience, and the importance of engaging Traditional Custodians in the care and management of natural resources and heritage. A Traditional Custodian representative nominated by the South East Aboriginal Focus Group sits on the Naracoorte Caves Interagency-Community Reference Group (IRG).
Naracoorte has also been able to gain the support of the local community. A strong ‘Friends of Naracoorte Caves’ group, an active consultative committee and supportive local businesses along with an understanding of the role the community has had in the development of Naracoorte Caves NP over 160 years contributes to a positive partnership between the park and community. Local government at Naracoorte have also recently enhanced connections with the community, through a prospectus and plan for the local business community titled Caves Connections, and by financially supporting scientific research at the site. Other local business associations have also contributed funds for research and events.

Naracoorte and Riversleigh both have significant strengths in regard to existing legislation, according to the interests of various stakeholders and as a result of on-going scientific interest. The Riversleigh component is protected under the Queensland Nature Conservation Act (1992) and managed according to the Riversleigh Management Strategy.
The Naracoorte component falls under the jurisdiction of the Naracoorte Caves National Park Management Plan (2001).
The Riversleigh fossil deposits are largely situated within the boundary of the Boodjamulla (Lawn Hill) National Park, but also extend outside the World Heritage site in both the national park and on neighbouring properties. The Naracoorte fossil deposits are situated within the Naracoorte Caves National Park. Both components of the World Heritage site are protected under the relevant parks legislation of the States in which they are situated. In May 2017, the South Australian Heritage Council confirmed the Naracoorte Caves Complex as a State Heritage Place in the South Australian Heritage Register (Government of South Australia, 2017). This formal recognition as an important part of South Australia’s rich non-Aboriginal heritage adds another layer of protection as State Heritage Places are protected under the Heritage Places Act 1993 and the Development Act 1993.
The World Heritage values of the Australian Fossil Mammal Sites are also protected as a matter of national environmental significance under the Australian Government’s Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act). Any new development proposal in the World Heritage site will be subject to assessment and approval under the EPBC Act if an action is considered likely to have significant impacts on World Heritage values. Importantly, this Act also aims to protect World Heritage site from impacts that originate outside their boundaries. It thus forms an additional layer of protection designed to protect values of World Heritage sites from external impacts (State Party of Australia, 2003).

Enforcement of the relevant laws and regulations is highly effective. All research activity (especially involving excavations and removal of materials) is carried out at the sites is in accordance with existing procedures. No breaches of optimal conservation practice have been observed (IUCN Consultation, 2019).

There have been no Committee decisions regarding this World Heritage site in recent years.

Use of both components is limited mainly to research, education and tourism which pose little to no threat to the site’s values. The SA DEW Scientific Permits Team with input from the IRG Research Subgroup, regional team and park management review all scientific research permit applications for work at Naracoorte Caves to determine the likely impacts of the research on World Heritage Values. In particular, DEW Permits Team assess the methods and always seek to minimise impacts of research from a conservation and aesthetic viewpoint if the area is in the public view. DEW and researchers developed a `Researchers Protocol' for Naracoorte covering all aspects of fossil extraction including minimum information that has to be recorded and procedures that are to be followed when conducting research. Tourism is addressed by implementing rigid policies which only allow access to areas designated as show cave or adventure cave under the Management Plan except where visitors are under the direct supervision of a park employee (State Party of Australia, 2003; Queensland Government and Environment Australia, 1993). Use by the public of Riversleigh’s resources is considered sustainable. Public access to the fossil sites is controlled along a public access walking track, in a remote area with low visitation (IUCN Consultation, 2019).

In Queensland and South Australia, day-to-day management activities in World Heritage sites are funded by the State Governments, while the Australian Government funds those additional activities necessary to meet World Heritage obligations and to address and respond effectively to the expectations of Traditional owners. The World Heritage site remains dependent upon regional funding to undertake any programmes, which are specifically targeted on the World Heritage values. Primary funding for research at Riversleigh has depended on successful application by the researchers for competitive grant funding from the Australian Research Council, support that has been achieved since 1978, but funding from this source is not guaranteed into the future. Faced with growing competition for finite resources funding from other State and National funding bodies has been focused on protecting Australia’s existing biota rather than on understanding the nature of and conservation relevance of extinct biota, despite the fact that the fossil record in the World Heritage site at Naracoorte and Riversleigh contain critical information important for the development of more effective long-term conservation programs for endangered living species such as the Mountain pygmy-possum (Burramys parvus). Hence better funding for understanding the far longer, pre-modern history and potential environmental resilience of modern lineages should be better supported than it is at present (IUCN Consultation, 2017). In September 2017, the Australian Government announced funding of AUD $145,000 per annum for five years from July 2018 to provide the continuation of the World Heritage Executive Officer and Advisory Committee for Riversleigh. However, this funding has remained the same for more than 10 years, despite increasing costs in operation. The Naracoorte component receives a non-indexed $100,000 per annum from the Australian Government for the Naracoorte Interagency-Community Reference Group (Advisory Committee) and World Heritage Executive Officer. This amount has become insufficient to continue the Executive Officer in a full-time capacity (IUCN Consultation, 2019).

 

Staff levels are sufficient to meet minimum day-to-day management requirements. Current Naracoorte staff do not have substantive training in fossil conservation, cave conservation and water management techniques, and rely on external advisors to assist in these areas. However, staff are trained to be vigilant observers in all related areas and are encouraged to report any changes (IUCN Consultation, 2019). There is currently strong support from researchers to assist and advise on management of values and train staff, highlighting the importance for management authorities to continually engage with the scientific community. Continued training of site interpreters in the methods and findings of current World Heritage-centred research is important to maintain quality communication of the World Heritage values, and some staff feel this training is too limited at present (IUCN Consultation, 2019). No staff are provided by State or National bodies responsible for World Heritage management to assist with research or site interpretation at Riversleigh.

Riversleigh has some developed education in the form of web material and Riversleigh centric on-line educational resources, a brochure and  fossil kits that enable some select and non-significant fossils to be used as a resource off-site (supervised by trained staff). Savanna Guides based out of Adel’s Grove conduct guided walking tours of the site. The Riversleigh Fossil Discovery Centre (operated by the Mount Isa City Council) in Mount Isa (260 km from Riversleigh) and Naracoorte Caves Wonambi Visitor Centre and interpretive displays contribute significantly to the transmission of the site’s OUV. The Riversleigh Fossil Discovery Centre undertook a 2.2 million dollar re-development and opened in June 2020 ($1.23 million through the Queensland Government’s Outback Tourism Infrastructure fund) and provides an excellent interpretation of Riversleigh’s World Heritage values and the ongoing research activities. The RWHAC’s expertise and the expertise of the University of New South Wales researchers were utilised to support interpretive content in the newly-refurbished Centre (IUCN Consultation, 2019).
Naracoorte’s Wonambi Visitor Centre, on site at the Caves, also houses interpretive displays providing important context to the values of the World Heritage site. Special exhibitions and displays are an ongoing part of site presentation, and the visitor interpretive centre hosts a sophisticated series of animatronic displays set within recreated habitats. However, many of the interactive components and interpretive panels have been damaged and are degraded. Low-level funds needed to restore the display area are being sourced in a staggered manner over the long-term, but a more substantive funding source is needed to avoid major disrepair, which could render the display static, or force it to be converted to a different space (IUCN Consultation, 2019). Naracoorte has a range of informative interpretive signage that conveys information on the importance of the site. Findings from new research will ideally be incorporated into these displays on an ongoing basis. Close consultation with researchers will ensure the accuracy and integrity of interpretative material.

The Riversleigh Management Strategy recognizes that visitors play a significant part in ensuring that the World Heritage site is an integral component in the life of the community. Furthermore, tourism provides important social and economic benefits to the region and opportunities for indigenous employment (IUCN Consultation, 2020). 
The Naracoorte Caves National Park is promoted as a prime visitor attraction and plays a substantial role in regional tourism. Modification of the caves to facilitate the interpretation of fossil deposits revolutionised the visitor experience as has the site’s interpretative centre which is focused specifically on the World Heritage values. Cave tours give visitors an appreciation of the processes which formed the caves and their contents, with particular focus on the fossil deposits, the aesthetics of caves and the biology and cultural history of the caves and the region in which they occur.
It would be beneficial to further promote the sites by additional profiling in order to build upon and enhance scientific and tourism interest. Special events help to reach a wide audience through media promotion, such as the World Heritage Festival, and can offer insight for people both familiar and unfamiliar to the site. 
 

Both components of the World Heritage site have management documents, which acknowledge the need to establish and maintain monitoring programs. Monitoring of research at Riversleigh is done through DEW and EPBC Act permitting and reporting, and via the regular assessments carried out by the research scientists themselves. Monitoring is now also included in Queensland’s State of the Parks Reporting. Currently conditions and threats are reported on in Queensland’s State of Environment Reporting which is published approximately every two years (IUCN Consultation, 2017). At Naracoorte, monitoring activities include inspections of caves on a set regular schedule to assess stability of limestone walls and ceilings. Ongoing observations are conducted on tours and glass indicators are used to detect rock movement. Visual monitoring of fossil sites occurs in show-caves daily and in other caves during stability inspections, and the bats are monitored by infrared cameras installed in the cave (IUCN Consultation, 2019). An opportunity exists to collaborate with researchers to develop a sustained monitoring program to keep track of the conservation status of natural values. A structured, scientific monitoring program that is delivered collaboratively with scientists, staff and volunteers would provide baseline data for conservation planning (IUCN Consultation, 2020).

There has been a considerable amount of literature published as outputs of research for AFMS - research is the cornerstone of the site’s World Heritage values. Both the Naracoorte Management Plan and the Riversleigh Management Strategy (RSMP) acknowledge the significance of ongoing research to fully realize the World Heritage values of the site. Both acknowledge the need to ensure that research is sustainable and detail appropriate controls and permitting procedures.
The Naracoorte Management Plan includes a requirement to ‘develop and implement a five-year Research Plan’ and the RSMP includes the requirement to ‘develop and implement a Research Plan. There are currently some large-scale high-level fossil-related projects underway involving multiple universities with multiple funding partners. The majority of research on Riversleigh fossils has been undertaken by the University of New South Wales (UNSW) who collaborate with over 100 research colleagues, and have discovered more than 40,000 fossils to date (IUCN Consultation, 2020).