NPAQ has developed a range of policies relating to National Parks and Protected Area Estate. These policies have been adopted as official NPAQ policy on National Parks issues.
The policies are:

Native Title
Resort Development
Miscellaneous Structures
Horse Riding
Roads and Vehicles
Tracks
Bees

NPAQ POLICY ON NATIONAL PARKS AND NATIVE TITLE

The Mission Statement of the National Parks Association of Queensland provides that NPAQ exists to promote the preservation, expansion, good management and presentation of the system of National Parks in Queensland.

The term "National Parks" is used in this document for brevity to include other forms of Protected Area as defined in the Nature Conservation Act, with the recognition that management principles for other forms differ in some respects from those for National Parks.

NPAQ is one of the largest and longest-established environmental organisations in Queensland. Its primary interest has always been National Parks. NPAQ and its Affiliated Organisations and members have over 70 years devoted time, effort and money to the well-being of National Parks, in a voluntary capacity. The activities of NPAQ have included investigation and identification of areas suitable for declaration as National Park, preparation of detailed submissions supporting declaration, discussion and comments on draft management plans and draft legislation, staffing of visitor centres and physical work on the construction and maintenance of tracks, the eradication of weed species and re-vegetation with native species in collaboration with Park rangers.

NPAQ thus considers itself competent to express views on all aspects of National Parks in Queensland.

NPAQ recognises the right of all people to visit National Parks in order to experience their natural and cultural values, consistent with the least practicable impact on the natural environment. Cultural values include both indigenous and non-indigenous values. Appropriate means of access to National Parks, consistent with management principles, are necessary to allow people to visit Parks.

NPAQ recognises that Aboriginal and Islander people ("indigenous people") occupied the land prior to the arrival of Europeans, and that indigenous people had, and in many cases still have, a close relationship with the land.

NPAQ also recognises that indigenous people have an on-going interest in the management of land and marine areas and in the decision-making processes in respect of these areas.

NPAQ further recognises that many non-indigenous people have also developed a close relationship with the land, which has caused them to devote considerable time, effort and money to measures aimed at preserving and protecting the natural environment and its flora and fauna. Moral rights should flow from the acceptance of these responsibilities.

The rights and responsibilities of users of National Parks should also be recognised.

NPAQ is aware of court decisions and legislation which confirm the survival of native title in parts of Queensland, and of court decisions in respect of the taking of native wildlife by indigenous people. Because of such decisions and legislation, NPAQ recognises that specific groups of indigenous people hold native title rights over areas of land and water.

NPAQ notes that native title confers on the holders of such title, rights to hunt, fish and gather food for subsistence and cultural purposes.

NPAQ recognises that the natural systems of Australia have over the years been changed by fires, both natural and man-made, and that in some areas, occasional burning is necessary to maintain the balance among plant and animal species. Traditional burning of the land may be advantageous to biodiversity in some cases, but detrimental in other cases.

In the light of the above, NPAQ has developed a Policy in respect of National Parks and Native Title.

Nature Conservation

NPAQ strongly maintains that National Parks in Queensland are essential for nature conservation. It supports the management principles of National Parks set out in the Nature Conservation Act, namely:

• to provide, to the greatest possible extent, for the permanent preservation of the area's natural condition and the protection of the area's cultural resources and values
• to present the area's cultural and natural resources and their values
• to ensure that the only use of the area is nature-based and ecologically sustainable.

NPAQ reiterates its main aim, namely:

To preserve intact in their natural condition the existing National Parks of Queensland, and to secure the reservation of all suitable areas.

Ownership

National Parks should continue to be public land, owned and managed by the Government on behalf of all people. Within this context:

• NPAQ accepts that native title exists in certain areas in accordance with principles laid down by the courts and by legislation and recognises that holders of native title rights are entitled to exercise those rights by participating in decisions regarding the management of their traditional lands.
• NPAQ further accepts that if Government intends to extinguish or impair native title, there should be negotiation with the holders of native title.

Involvement of Indigenous People

It is appropriate for a variety of means to be adopted to enable indigenous people to exercise their native title rights. Such means could be:

• Participation in the planning process and the preparation of management plans.
• Co-operative and responsible arrangements for management.
• Membership of advisory committees.
• Affirmative action employment and education policies.

Management

Overall management of National Parks should remain the responsibility of QPWS, to promote consistency and efficiency and the best use of scientific and traditional knowledge and to ensure equity in funding.

Individual management boards do not achieve those objectives and are not a satisfactory arrangement.

Advisory committees for Parks, with representation from interested and informed organisations, holders of native title, and users, can serve a useful purpose in the management of Parks.

These groups should also be involved in the preparation of management plans.

The arrangements for the involvement of indigenous people must be culturally appropriate.

Communication and co-operation among environment groups, native title holders and the management agency should be encouraged and extended.

Management of National Parks, particularly in respect of the use of fire to maintain the appropriate ecological balance, should take into account the best information available from all sources, including scientific information and traditional practices. Prescribed burning should be used where the best information available shows that burning is desirable, and details of the burning should be planned in accordance with properly established principles.

Activities in National Parks and other Protected Areas

The principles of preservation and protection in National Parks should be maintained. Activities such as hunting and gathering should not take place in National Parks, but if such activities are sanctioned, they should take place only in accordance with Management or Conservation Plans which have been developed with the participation of all interested groups. In particular -

• Hunting and gathering of animals and plants from National Parks should be allowed only when collection from alternative areas is not practicable, and when collection has no long-term detrimental effects on the viability or ecology of the animals and plants.
• The hunting and gathering should be restricted to non-commercial purposes.
• The hunting and gathering of rare or threatened animals or plants will not be allowed.
• Removal of animals or plants from ecological communities or species of special significance, reference areas, special protection areas as specified in management plans, rehabilitation areas and areas that are sensitive to damage, will not be permitted.
• There should be adequate supervision and enforcement by the relevant authority.

The provision of long-term accommodation, except for management staff, and the provision of the necessary infrastructure to service such accommodation, are inconsistent with the fundamental purpose of reservation, and should not be permitted.

The provision that ensures that the only use of the relevant area is nature-based and ecologically sustainable should continue to apply.

Employment and Education

Affirmative action policies should be adopted to give equity, opportunities and responsibilities to indigenous people in employment as administrators, rangers and in other positions within National Parks.

Opportunities should be provided for indigenous people to obtain education and training in resource and conservation management.

Scientific and historical information and information on indigenous culture should be included in the training of Parks staff. The method of presentation of indigenous cultural aspects should be determined by native title holders.

The development of employment opportunities for indigenous people in National Parks, and of indigenous enterprises which enable visitors better to appreciate the values of Parks, should be encouraged. Commercial developments or infrastructure development should not be located in National Parks, but outside Parks where services are more readily available, and should avoid visual or environmental effects that would adversely impact on Park values.

Consultation and Communication

NPAQ will support an ongoing process of consultation with native title holders towards the identification and declaration as National Park, of all suitable areas, and to ensure that environmental and cultural objectives are taken into account in the management of such areas.

The consultation process will require dialogue between native title holders, non-indigenous people with a particular interest in National Parks, and the managing agency, to promote a clearer understanding of each other's perspectives on management issues.

Place Names

It has always been the policy of NPAQ that it is appropriate for indigenous names to be applied to National Parks and their features. Where other names of heritage or cultural significance are already established, customary usage should prevail, but indigenous names may be indicated for information.

Intellectual Property and Information

The rights of indigenous people to manage their cultural intellectual property according to their custom should be recognised, as should their rights to present cultural material relevant to National Parks.

Comprehensive scientific information on the natural history of National Parks and their features should be presented for the information and education of visitors.

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POLICY ON POSSIBLE RESORT OR LODGE DEVELOPMENT IN NATIONAL PARKS

Preamble

The National Parks Association of Queensland Inc (NPAQ) has noted that from time to time, proposals are advanced by the government, public bodies, potential developers or individuals for the construction of resort or lodge accommodation in National Parks. Such proposals are usually advanced for commercial reasons, to benefit the developer or the district.

As many National Parks contain areas of particular interest which are likely to attract visitors, development proposals may be expected to occur again in the future. NPAQ has always maintained a basic policy that resorts and lodges should not be permitted in National Parks. Particular circumstances may warrant departures from this policy - specific instances, as discussed below.

NPAQ supports the management principles for National Parks set out in the Act, and in particular in respect of this policy, the principles:

• preservation of the area's natural condition
• preservation of the area's cultural and natural resources
• ensuring that the only use of the area is nature-based and ecologically sustainable

NPAQ recognises that some island National Parks may constitute special cases because most people would not be able to visit and experience these Parks unless some accommodation facilities are provided on the island. NPAQ further recognises that some of the larger Parks, particularly those in remote areas, cannot be visited in a meaningful way without some accommodation facilities within the Park.

Instances such as these lead to possible exceptions to the principle that accommodation facilities for visitors should be located outside the Park, preferably close to strategic points of access.

It is basic to the philosophy of NPAQ that any accommodation facilities within a Park must be designed, operated and promoted as a means of access for people who wish to visit the Park to experience its natural and cultural values. Similar principles should apply to accommodation for visitors located near Park boundaries.

Problems will almost invariably arise with any form of accommodation in a Park from the handling and disposal of liquid and solid wastes. This is one of the major issues faced in respect of any such development. Proper measures must always be taken to prevent pollution in the Park from wastes, including adoption of the most advanced technology to achieve the desired results. If it is not practicable properly to handle, treat and dispose of wastes, the development should not proceed.

Any accommodation facilities adjacent to Parks should be subject to similar requirements in respect of wastes if there is any possibility that wastes could enter or affect the Park.

All levels of government involved in planning should ensure that intensive commercial operations including tourist-type developments or attractions are not permitted adjacent to boundaries of National Parks.

Accommodation within a Park must not have, and accommodation near Park boundaries should not have, as objectives the provision of luxury resort accommodation for its own sake nor activities for guests that are unrelated to the Park and its values. Such objectives should be pursued elsewhere.

It is sometimes held that camping is the most suitable form of accommodation for people who wish to experience and identify with a National Park. While NPAQ considers that low-profile accommodation is appropriate, it recognises that for various reasons other forms of accommodation may validly be desired. A range of facilities is thus considered appropriate to cater for visitors to the Park.

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The Policy of NPAQ on POSSIBLE RESORT OR LODGE DEVELOPMENT in National Parks:

1. NPAQ, on principle, opposes accommodation facilities for visitors within National Parks, and favours appropriate facilities located adjacent to Parks near suitable points of access.

2. Where access to a Park is difficult, as in the cases of some island Parks and Parks large in area, particularly in remote regions, the provision of accommodation facilities within the Park may be necessary to allow people to visit and experience the Park.

3. In any such cases, the Parks & Wildlife Service should establish criteria, administer special leases for resorts/lodges and ensure compliance with conditions. Rangers should have the necessary authority in this respect.

4. Accommodation facilities should have as their main objective the provision of access for visitors to the Park, and should promote an understanding and appreciation by visitors of the values of the Park. Information and interpretive services should be provided.

5. Accommodation facilities should be low-key. A range of facilities should be provided for visitors. Camping facilities and simple cabins should be included. Buildings should not be high-rise and should be designed in sympathy with the environment.

6. All necessary measures must be taken to ensure that any accommodation facilities in a Park do not cause any water, land or air pollution. If the technology is not available, or the necessary precautions cannot be afforded to achieve this result, the accommodation facilities must not be permitted.

7. The relevant authority should ensure that no developments that may cause pollution in the Park should be permitted adjacent to a Park.

8. Wastes generated on island Parks should be removed from the island for final disposal.

9. Elaborate sporting or entertainment facilities such as golf courses, bowling greens, tennis/squash courts and professional entertainment are not appropriate in this context as they may be in a tourist area.

10. A public bar for use by other than resident guests is undesirable.

11. Day visitor facilities should be provided by the Service or through an arrangement with the accommodation proprietor, in appropriate locations preferably away from the resort/lodge.

12. Wherever practicable, guests/vehicles should be parked at the resort/lodge and not used for general transportation within the Park. The use of shuttle buses should be promoted, and walking from the resort/lodge should be encouraged, in appropriate circumstances.

13. Domestic animals are not permitted in National Parks and must not be kept at the resort/lodge.

14. Developers and operators must ensure that exotic plants and plants native to Australia but not occurring in the local environment, are not introduced on to the lease.

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POLICY ON MISCELLANEOUS STRUCTURES IN NATIONAL PARKS

Preamble

The cardinal principle for the management of National Parks set out in the Act, viz. the preservation of the natural condition, implies that artificial structures should not be built in National Parks.

Structures of various types have however been constructed in some Parks in Queensland and have their counterparts in Parks elsewhere.

There may be reasonable grounds for permitting such structures in some specific cases, including park management, necessary facilities for visitors to the Park, enhancement of the experience of visitors, or the general community interest.

The provision of camping areas, with the necessary facilities, is covered by the policy of NPAQ on Camping in National Parks.

No need is seen for the establishment or operation of kiosks in Parks for the sale of food, drinks and other items. Sufficient demand for such items would exist only in areas where there are concentrations of visitors. Such areas will be handy to access points on Park boundaries and any kiosks that were wanted could be located outside the boundaries. A kiosk would not be viable in the more remote areas of a Park.

Toilet blocks have been provided in some locations in Parks where there are concentrations of people. These can be justified as a convenience for visitors and more importantly for the maintenance of hygienic conditions and the prevention of environmental damage through pollution. The most appropriate technology should be adopted in the provision of toilet facilities, depending on local conditions.

Lookout platforms have traditionally been provided in National Parks to enable visitors to obtain views and photographic opportunities at particularly noteworthy locations such as edges of cliffs and adjacent to waterfalls. These platforms are justifiable as enhancements of the experience and reasonable expectations of visitors, as safety measures and as means of protecting the environment. Visitors will otherwise inevitably tend to scramble to desirable viewpoints with consequent danger and environmental damage by trampling and destruction of vegetation. Provided platforms are carefully located and designed, no significant environmental ill-effects are foreseen.

Lookout towers have not commonly been used in National Parks in Queensland, although they have been used in Parks elsewhere to good effect. Decades ago, when many of the Parks in south-east Queensland were dedicated, it was normal for the tops of the most prominent mountains to be cleared for the installation of "trig stations", to provide line of sight from one crest to another for the main triangulation surveys.

At that time therefore, the tops of these mountains provided unobstructed and extensive views of the surroundings. Mt Hobwee and Mt Mitchell in south-east Queensland were typical examples, and provided spectacular views over surrounding mountains, the plains and in the former case, the coastline.

In the intervening years, vegetation has re-grown. The small remaining clearing at Mt Hobwee is entirely surrounded by rainforest re-growth, while the summit of Mt Mitchell is so clothed in re-growth that the old summit cairn is visible only to those who know its location.

As a result at Mt Hobwee, there is no view whatever from the summit nor from any point near it. This reduces considerably the appeal of Mt Hobwee to visitors, whose reasonable expectations are frustrated. At Mt Mitchell, there are still available extensive and spectacular views from the edge of the cliffs, in most directions, so little value is lost.

It is considered desirable for appropriate views of the landscape to be available to visitors, and this can be achieved at locations like Mt Hobwee by means of lookout towers. Sympathetically designed, such towers, built up to a little above canopy level, can be unobtrusive and provide a valuable amenity for visitors.

Platforms and towers should obviously be designed and built in accordance with proper safety standards. The fear of incurring possible claims for damages from users of such facilities should not deter the Service from their provision.

Many National Parks in Queensland incorporate high points in the topography because often the only land left uncleared available for dedication was hilly. These high points can be attractive locations for communications towers for various purposes. Such towers, of significant height and with many appurtenances, cleared areas and man-proof fences, are offensive in National Parks. While the need for such towers at the present stage of technology is recognised, every effort should be made to find solutions outside National Parks. This has usually been achieved when proposals for locations in Parks have been opposed by the public.

Policy on MISCELLANEOUS STRUCTURES in National Parks:

1. Kiosks for the sale of food drinks and other items should not be permitted in National Parks.

2. Toilet blocks may be provided in National Parks in appropriate locations where there are frequent concentrations of visitors. They should be designed to maintain hygienic conditions and avoid pollution of the environment, using technology appropriate to the circumstances.

3. Lookout platforms should be erected in appropriate locations to permit better and safe viewing by visitors of attractive features, to provide opportunities for photography, and to protect the local environment.

4. Lookout towers should be erected in particular locations where trees and shrubs obscure extensive or spectacular views that are not available in the vicinity from natural lookout points.

5. Platforms and towers should be carefully located and sympathetically designed to be unobtrusive and to fit into the landscape. They must obviously be designed in accordance with safety requirements but fear of possible damages claims in the future should not be a determining factor in the decision to construct platforms or towers.

6. Communications towers should not be located in National Parks unless it is shown conclusively that towers are essential in the community interest and that there are no feasible alternative locations.

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POLICY ON HORSE RIDING IN NATIONAL PARKS

The Nature Conservation Regulation (1994) provides that a person shall not take an animal into a Protected Area, with limited exceptions which are:

• under a grazing permit or a stock mustering permit
• guide dogs
• horse riding if this is permitted in a Conservation Park or Resources Reserve under a regulatory notice

It has been traditional for notices at the entries to National Parks to draw attention to the fact that domestic animals are prohibited.

There have however from time to time been suggestions from various quarters that horse riding should be allowed in National Parks

It is self-evident that horses would cause severe trampling and compaction on walking tracks and through undisturbed areas, because of the greater weight and pressure on the ground involved with horses and hard hooves. These disturbances lead to soil erosion. Compaction of tracks leads to increased rainfall runoff with the probability of further erosion.

Trampling and up-rooting of plants will be far more serious with horses than with humans. Horses grazing as they walk can also lead to up-rooting of plants.

Introduction of weeds is a common problem along tracks used by horses, with the seeds of weeds usually located in horse dung. In this situation, there are strong possibilities for germination and growth. Weeds can present serious problems whenever established in Parks. Seeds are often spread in compacted earth in the hooves of horses.

The presence of horses in Parks may also be expected to impinge on the enjoyment of Park users seeking passive recreation such as bushwalking, bird watching, nature observation or picnicking.

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The policy of NPAQ in respect of HORSE RIDING is therefore as follows:

1. Horse riding must continue to be prohibited in National Parks.

2. Horse riding is undesirable in Conservation Parks, which are usually small in extent, so horse riding should generally not be permitted.

Regulatory notices permitting such activity should be issued only in special circumstances in cases where there is strong public demand coupled with an absence of other places where horses may be ridden, and only where the Service is satisfied that no significant damage will be caused. Routes that may be used by horses in these cases should be specified and should be limited to routes where damage will be minimal.

3. Horse riding should be permitted in Resources Reserves only where the reserves are large in area and located in country which is unlikely to suffer significant damage from this activity. Restrictions should be applied as appropriate to this activity in respect of particular areas of the Reserve or certain seasons of the year.

areas of the Reserve or certain seasons of the year.

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POLICY ON ROADS AND VEHICLES IN NATIONAL PARKS

Roads of various types occur in some National Parks in Queensland. Some of these are surveyed and gazetted roads, most of which existed before the Park concerned was dedicated. There are also instances of roads, including major highways, that cut through Parks. These maintain the status of road and are not part of the Park. Many which were straddled by later Park dedications will of necessity continue as through roads.

Many roads in Parks have not been gazetted. These include roads and tracks used by pastoral lease-holders for management of pastoral properties and forestry roads where forestry operations were carried on, before the areas concerned were dedicated as Parks. They also include routes developed by visitors, particularly in 4WD vehicles, to gain access to camp-grounds, informal camping sites and places of interest.

Some pre-existing roads are used by the Parks & Wildlife Service for management purposes, particularly for fire management.

It could be argued, at least in theory, that no roads nor vehicles should be permitted in a Park, to conform with the principle of preserving the areaís natural condition.

This however in some cases would conflict with the principle of presenting (to the public) the cultural and natural resources of the park and with requirements for good management. Large Parks, such as exist in remote areas of Queensland, would not be accessible to visitors, if roads and the use of vehicles were prohibited. In such large National Parks, some roads will continue to be necessary for management purposes and to allow visitors to see appropriate areas and features of the Parks.

Management plans should specify which, if any, existing roads are to be retained for management and visitor access purposes, and should provide for any other existing roads to be closed and allowed to revegetate, with intervention if necessary. The plan should also prescribe any new roads that are to be opened and should detail the reasons for this.

Vehicles of all types, in many Parks in Queensland, have had adverse effects. These have included damage to roads and tracks in wet conditions, to natural bushland and to coastal dunes. Soil erosion and compaction, deterioration of the value of these areas as wildlife habitat and diminution of aesthetic and natural values have resulted.

Associated problems that can result from the use of vehicles in Parks are the introduction of weeds, littering and increased fire danger.

NPAQ is concerned that continued or increased use of vehicles in Parks would reduce their value for traditional forms of nature-based recreation such as bushwalking and nature study. The value of Parks for quiet enjoyment, peace and solitude should be protected from intrusion of vehicles.

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The Policy of NPAQ in respect of ROADS & VEHICLES is therefore as follows:

1. Roads and vehicles should not be permitted in National Parks except in special circumstances or to meet particular requirements in accordance with a management plan.

2. Through roads which were pre-existing and which are necessary for general public traffic may be tolerated in order to achieve dedication of an area as National Park.

3. Roads which are required for management purposes should be detailed in the management plan for use by Service vehicles as necessary.

4. In particular National Parks, especially those large in area or otherwise difficult of access, provision may be made in management plans for roads to visitor centres, camping and day-use areas, bush-camping sites and points of special interest, to enhance the experience by visitors of the Parkís features. The management plan, in the light of circumstances, should prescribe the types of vehicle that may be used on specific roads and any restrictions on usage in respect of season of year, time of day and weather conditions.

5. Vehicles should not be allowed to travel off roads nor on roads other than those provided for use under the provisions of a management plan.

6. Existing roads and tracks which are not required for visitor use nor for management purposes should be closed and allowed to re-vegetate.

7. In particular instances, it may be desirable for provision to be made for access to some points of interest for handicapped persons by vehicles, and it may be appropriate for such access to be limited to handicapped people to reduce numbers of vehicles.

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NPAQ POLICY ON TRACKS IN NATIONAL PARKS

The first National Park, Yellowstone, was established "for the benefit and enjoyment of the people". The proponents of its reservation were impressed by its remarkable natural features, and recognised that people would want to visit the area to experience its wonders. Establishment as a National Park was seen as necessary to ensure that the area remained as publicly-owned land available to visitors.

The petition that led finally to the declaration of Lamington National Park referred, inter alia, to the beauties of nature, distinctive scenery, rare zoological and botanical species, preservation of native birds and animals in the wild state and the value of the area for people to recuperate in a health-giving climate surrounded by the beauties of nature.

It was taken for granted from the outset that people would want to visit National Parks, with opportunities for relaxation in the natural environment, observation of plants, birds and animals, the enjoyment of attractive scenery and landscape forms. These purposes are today often described as "experiencing the values of a National Park".

The "management principle" for National Parks, as set out in the Nature Conservation Act, with which NPAQ agrees, covers preservation, presentation, and ensures that the only use is nature-based and ecologically sustainable.

Walking tracks are considered to provide the most appropriate approach to "presentation" through a nature-based activity.

The objects of NPAQ include the promotion of measures to allow visitors to have access to Parks and the organisation of field outings for members and guests.

It has always been the practice of NPAQ to conduct such outings to allow members and visitors to explore and experience National Parks and areas that might be suitable for reservation. NPAQ is convinced that respect and love for the natural environment is promoted and strengthened by such activities. The experience of NPAQ is that many people who have been introduced to nature in this way become strong supporters of protection of the natural environment.

NPAQ and administering authorities in Australia and other countries accept that the best way to explore and experience natural areas is by walking, because this provides the time and opportunity for observation and appreciation of the Park's values.

NPAQ, as indicated in its adopted policies, does not favour the construction of roads in National Parks (except in particular circumstances in large Parks) nor the use of horses or trail-bikes.

It is recognised that the way in which National Parks are regarded by people has changed to some degree over recent decades. The original concept of preservation of attractive natural areas to enable people to experience and take pleasure from the observation of natural processes has expanded to include the objective now generally referred to as preservation of biodiversity. This objective has been expressed by NPAQ since its earliest days as "the preservation of adequate areas representing every type of country in the State".

It is recognised that some people interested in conservation take the view that preservation of biodiversity is the only purpose of National Parks and that provisions for people to visit Parks are not important. NPAQ considers however that it is right and proper that people should be able to experience and enjoy their National Parks and enhance their environmental knowledge, and that they should be encouraged to do so to the greatest extent permitted by the requirements of good management.

It is clear that the provision of walking tracks is the best and least intrusive way of allowing people to experience National Parks, and NPAQ accordingly supports the provision of tracks to notable features and areas of particular interest and value.

At the same time, it is recognised that there could be areas of National Parks, particularly large Parks, and areas of special importance, such as the habitats of rare or endangered species or areas of special cultural significance, where no track or if appropriate, no access, is permitted.

The provision and maintenance of tracks should be carefully planned and covered in management plans which are open for public comment before adoption. Due attention should be given by the administering authority to the considered views of users of Parks.

The detailed design and construction of tracks needs to incorporate sound engineering principles in respect of slope and edge stability, drainage, and surface material. A publication, "Australian Walking Track Manual", by Rob and Sandra Devern, covers design and construction in some detail. This policy does not attempt to cover these aspects.

There is a Draft Australian Standard for the Classification and Signage of Walking Tracks. This will be succeeded eventually by a formal Australian Standard. There is intended to be a further Draft and Standard covering Design and other aspects. There are at present six Classifications of Tracks, ranging from Class 1 (suitable for all users including those with reduced mobility) to Class 6 (routes involving no modification of the natural environment).

Having regard to these issues, NPAQ has adopted a Policy on Tracks in National Parks as follows:

1. A Track is any way formed by or for human passage on foot. The term is intended to include the various categories which may be referred to at times as walks, paths, tracks, trails and routes.

2. Tracks should provide a wide diversity of walking experiences for visitors whilst protecting the values of the National Parks.

The classification of tracks should take into account environmental aspects, general management issues, likely numbers of users, reasons for the existence of the track, the terrain and costs of construction and future maintenance.

3. Tracks should be provided to a liberal extent in National Parks except where they would be inconsistent with the objectives of management plans, in order to:

• enable a variety of visitors to enter, experience and enjoy the Park and its values in appropriate ways;
• provide for a variety of benefits by selecting locations that are planned to make notable features accessible to visitors, and through appropriate design and construction;
• ensure that the total impact on the natural environment is minimal;
• afford a reasonable degree of convenience and safety to walkers, dependent on the classification of the track;
• promote environmental education and provide interpretation of the Park's features;
• divert visitors away from areas which in accordance with the management plan are to be given special protection;
• separate walkers from vehicular traffic, where there are approved roads within the Park.

4. Tracks and their classifications should be shown on the plans which accompany management plans.

5. The location and classification of tracks should be planned carefully to comply with management objectives and to provide for visitors examples of scenery, landforms and features, ecosystems, communities, native wildlife and recreational opportunities. Interpretive and guiding signs and other facilities should be provided as appropriate to the track classification.

6. Existing tracks which are inconsistent with management plans should be closed and allowed or assisted to re-vegetate.

7. Management plans may permit walking through areas where there are no specific tracks or routes, with limitations on the frequency of visits, numbers of walkers or the need for permits as required by environmental considerations.

8. Tracks suitable for use by people in wheelchairs or with other disabilities, should be provided where appropriate.

9. The environmental impact of a track, including its visual impact should be minimised by careful planning, location, design and construction which take account of the local setting of the track. Sound engineering principles relevant to stability, drainage, surface material and maintenance requirements should be observed.

10. Special features such as steps, safety fences and safer stream crossings should be provided as appropriate.

Hardening of tracks through more resistant surfaces and in special cases, provision of boardwalks, should be adopted where necessary because of planned access requirements, amount of foot traffic or nature of the country traversed.

11. Tracks should be properly maintained to the standard applicable to their classifications. Where tracks have to be closed because of natural causes or safety considerations, every effort should be made to provide an equivalent alternative route. Adequate resources should be made available to the Queensland Parks and Wildlife Service for these purposes.

12. In view of the high costs involved in the labour-intensive activities of track construction and maintenance, mechanical equipment should be used wherever it can result in economies. Every effort should be made to reduce to a reasonable degree the noise and other disturbance that is caused by equipment.

13. Visitors using tracks should be educated not to deviate from tracks, to reduce environmental impact and maintenance costs and to enhance safety. Physical devices to prevent deviations should be installed where necessary on the basis that the visual impact of such devices is less serious than the damage that would otherwise result.

14. On circuit tracks, restriction to "one way" traffic should be considered to reduce the frequency of encounters with other walkers. The selected direction should take account of views or other features along the track.

15. In particularly sensitive areas or where numbers of walkers are high, consideration should be given, after assessment of acceptable impacts, to restricting the number of walkers allowed on tracks.

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NPAQ POLICY ON BEES IN NATIONAL PARKS

The production of honey in Queensland is based mainly on groups of beehives located in bushland. The sources of nectar used by bees to produce honey include a variety of flowering trees and shrubs, including both native and introduced species. There is also a significant trade in the export of queen bees to other countries, as Australia, unlike New Zealand, is free of introduced bees mites.

Hives are not normally left in the same location indefinitely. It is the practice of bee-keepers (apiarists) to move hives to follow seasonal flowering periods.

Bees used for the commercial production of honey are almost exclusively European or “Italian” honeybees of the genus Apis(honeybees), which were introduced to Australia for this purpose, and are now kept for honey production in most parts of the country.

Stationing of hives of honeybees in National Parks has traditionally not been allowed in Queensland, but considerable use has been made of State Forests and other forested areas for this purpose.

It is recognised that the precise location of hives is not the only relevant issue, as honeybees will travel significant distances, at least 2 km, if necessary from hives, to obtain access to blossom.

In recent times, as a result of agreements on the future status of State Forests, many of these areas have been or will be gazetted as National Parks.

This means that under present legislation and policy, beehives will not be permitted in these areas when they become National Parks. The Queensland Government however has agreed to allow hives to remain in new Park areas until 2024, so that beekeepers can attempt to locate suitable new areas.

Beekeepers organisations have expressed the view that this arrangement is not satisfactory because suitable alternative areas will not be available. They maintain that availability of nectar will be reduced, with significant adverse effect on the industry.

Honeybees are distinct from native bees of which there are more than 1500 species over the whole of the Australian continent. Native bees are found in the complete range of habitats, from tropical rainforests to snow-capped mountains and hot dry deserts.

Native honey producing bees (Genus Trigona and Austroplebeia), with ten species, are stingless. All other species of native bees can sting. The stingless bees are tropical species and are well suited to the climates of Queensland, the Northern Territory and northern New South Wales.

Stingless bees are the only native bees currently available for sale in Australia. Beekeepers transfer nests into small hive boxes, which are used for honey production and crop pollination. It is understood that commercial honey production from native bees is relatively insignificant.

The matter has been argued publicly in recent times, without any agreement on the course that should be followed. The responsible Minister has adhered to the principle that stationing of hives in National Parks must cease by the year 2024.

The Australian Nature Conservation Agency (ANCA) has caused a report to be prepared on The Impacts of Feral and Managed Honeybees in Australia. Several significant findings of this investigation are relevant to the formulation by NPAQ of a policy on this issue.

• Feral and managed colonies of honeybees have been present in Australia for about 170 years, but their distribution and abundance has increased dramatically over the last 60 years.
• The tree hollows used by feral honeybees broadly overlap with those used by a variety of native birds and mammals, but feral colonies appear to occupy only a small proportion of the available hollow (often less than 1 per cent).
• Honeybees visit the flowers of a large number of native plant genera and interact with a wide diversity of native flower-visiting animals. For many plants, honeybees were the most frequent floral visitors, and often consumed more than half of the floral resources being produced.
• Numbers of native bees may decline following influxes of honeybees into an area but data on this were equivocal.
• Responses of honeyeaters to influence of honeybees varied. In some cases where there was a surplus of floral resources, the numbers of honeyeaters did not change, but in other cases, honeyeaters increased their feeding territory areas and visited flowers less frequently. Population densities of honeyeaters were reduced 30-50 percent when honeybees were prominent.
• The production of seeds by various plants was affected by honeybees. Some plants showed a reduction in seed production, while other showed enhanced seed production. The latter category involved plants that received inadequate attention from their native pollinators. Some native plants may depend on honeybees for full pollination because native pollinators have declined. Some plants may benefit from the presence of honeybees while other plants and animals may continue to suffer degradation in their presence.
• Management will remain contentious while there is insufficient information about interactions between honeybees and the Australian biota.
• A regional approach that leads to at least some of the natural resources within each region being maintained free from honeybees would promote conservation of regional biodiversity.

Consideration of Issues

It is a fundamental principle in the management of National Parks that flora and fauna not native to the area should be excluded from Parks. This applies for example to domestic animals and exotic plants. Adherence to this principle would mean that honeybees should not be permitted in Parks.

National Parks and other Protected Areas occupy only a small part of Queensland.

It is further established principle that the removal of native flora or fauna or material produced by them or other natural materials should not be permitted from Parks. The removal of nectar and pollen to hives which are then “robbed” to remove the resulting honey is in fact an extractive operation.

These principles are adopted to preserve the integrity of National Parks and the natural systems in them, and should continue to be followed in respect of non-native bees.

It is clear that through evolution over a long period of time, relationships have been established between native bees and native birds and mammals (e.g. honeyeaters and gliders) on the one hand and native flora on the other hand. The available evidence indicates that at least in some cases, numbers of birds are reduced where honeybees are present in areas. It would appear reasonable to assume that removal of nectar by honeybees would reduce the food source available to native mammals and native bees. The evidence further shows that some native plants rely on pollination by native bees and that satisfactory pollination of these plants cannot be effected by honeybees if honeybees displace native bees.

Honeybees constitute competition for native bees and native birds and mammals and must be expected to reduce numbers and effectiveness of native species.

While conclusive quantitative evidence on the overall effects of honeybees in areas reserved for preservation in the natural condition may not be currently available and accepted, the basic arguments against permitting hives of exotic bees in National Parks cannot be overlooked.

A related issue arises from the possible location of hives in areas just outside National Parks, on the basis that bees will be able to harvest nectar and pollen from within the Parks. This is a more complex issue because the range of travel of bees will vary depending on circumstances. It would appear difficult and perhaps impracticable to define a specific zone outside Park boundaries from which beehives would be prohibited. Any such proposal would promote further opposition from beekeepers, and could well be impossible to police.

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Policy

Having regard to these issues, and in maintenance of its principles as expressed in its other policies, NPAQ has adopted a policy on honeybees in National Parks as follows:

1. The placing of hives of honeybees in National Parks should not be permitted.

2. Efforts should be made by the authorities to discourage the placing of hives close to Park boundaries. Distances outside boundaries should be dependent on distances which bees are likely to travel.

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