MURRAY-DARLING BASIN AUTHORITY

ReportoftheIndependent AuditGroupforSalinity

2011-12

IndependentAuditGroup forSalinityMembers:

RogerWickes(LeadAuditor)

NoelMerrick

RogerShaw

January 2013

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PublishedbyMurray–DarlingBasinAuthority.MDBAPublicationNo01/13

ISBN978-1-922177-28-5(print)

ISBN978-1-922177-27-8(online)

©Murray–DarlingBasinAuthorityforandonbehalfoftheCommonwealthofAustralia,2013.

WiththeexceptionoftheCommonwealthCoatofArms,theMDBAlogo,allphotographs,graphicsandtrademarks,thispublicationisprovidedunderaCreativeCommonsAttribution 3.0 AustraliaLicence.

TheMDBA’spreferenceisthatyouattributethispublication (and anymaterialsourcedfromit)usingthefollowingwording:

Title:ReportoftheIndependentAuditGroupforsalinity2011–2012

Source:LicensedfromtheMurray–DarlingBasinAuthority,underaCreativeCommonsAttribution3.0AustraliaLicence.

Authors:IndependentAuditGroupmembers: RogerWickes(LeadAuditor)

NoelMerrick

RogerShaw

TheMDBAprovidesthisinformationingoodfaithbuttotheextentpermittedbylaw,theMDBAandtheCommonwealthexcludeallliabilityforadverse consequencesarisingdirectlyorindirectlyfrom usinganyinformationormaterialcontainedwithinthispublication.

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AUDITORS’ FOREWORD

February2013

Chairperson

Murray-DarlingBasinAuthority

GPOBox1801

CANBERRA ACT 2601

DearChairperson,

WehavepleasureinsubmittingtoyoutheReportoftheIndependentAuditGroupforSalinity,2011–12.This,thetenthsuchauditoftheBasinSalinityManagementStrategy,2001–2015,coveringthefifthyearofPhase2,hasbeencarriedoutinaccordancewiththeprovisionsofScheduleBtotheMurray-DarlingBasin Agreement,(Schedule1totheWaterAct2007(Commonwealth)).

ThisyearthemodelledMorgantargetof800ECfor95%ofthetimewasreachedforthethirdtimesinceitwasset.ThisisasignificantachievementfortheBasinSalinityManagementStrategy.Thecontinuousriverflowsovertheyearallowedasignificantamountofsalttoflowtotheseawithoutanypeaksinsalinitythat couldhavebeenexpectediftheflowfollowingthefloodhadquicklyreducedback toentitlement.

Thepredictedincreasesinsalinityintheout-years,whileexpected tobelower,isstillariskandmanagement actionsdevelopedduringtheimplementationoftheBasinSalinityManagementStrategyareessentialparticularly in lowflow years tokeep thesalinity in therivers atagreed levels.

TheBasinSalinityManagementStrategycontinuestobesupportedbyanexcellentframeworkofresponsibilitiesandacommoncommitmentbytheagenciesandofficerstomakeitwork.ThismodelofactionistobecommendedandwhilestrainedduringthepreparationoftheBasinPlanappearstobeagainworkingwell.ItisimportantthatcurrentchangesinfundingarrangementsbeingnegotiatedbetweenthejurisdictionsstillprovidestheresourcesrequiredtocontinuetheexcellentgainsmadeinsalinitymanagementintheBasin.

WeareimpressedwiththecollectivecommitmentofstafffromalljurisdictionsincludingtheMDBAtotheBasinSalinityManagementStrategyandextendourthanksfortheircooperationandassistance.

Yourssincerely,

ROGERWICKES – Lead Auditor NOELMERRICK – Auditor ROGERSHAW - Auditor

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Abbreviations

BSMSBasinSalinityManagementStrategy

BSMAPBasinSalinityManagementAdvisoryPanel

CAPCatchmentActionPlan

CEWHCommonwealthEnvironmental Water Holder

CMACatchmentManagementAuthority

CPIConsumerPriceIndex

CSGCoalSeamGas

ECElectrical ConductivityexpressedinunitsofmS/cm

EOVEndofValleyTarget

GLGigalitre(1000ML)

GSWITGroundwater-SurfaceWaterInteractionSoftwareToolHGLHydrogeologicalLandscapes

IAG-SalinityIndependentAuditGroupforSalinity

INFFERInvestmentFrameworkforEnvironmentalResources

IQQMSurfacewatermodelsoftware(IntegratedQuantityandQualityModel)

MDBMurray-DarlingBasin

MDBAMurray-DarlingBasinAuthority

MDBMCMurray-DarlingBasinMinisterialCouncil

MODFLOWGroundwatermodelsoftware[MODularFLOWmodel]

MLMegalitre(1000m3)

MSM-BigModRiverMurraymodelsoftware(MonthlySimulationModel–BigModel)

NAPNationalActionPlanforSalinityandWaterQuality

NRCNatural ResourceCommission

NRMNaturalResourceManagement

PCFPolicyChoiceFramework

REALMSurfacewatermodelsoftware(REsourceALlocationModel)

SARSodiumAdsorptionRatio

SISsSaltInterceptionSchemes

SIMRATSalinityImpactRapidAssessmentTool

SourceWaterquantityandqualitymodelsoftware(eWaterLtd)

TLMTheLiving Murray program

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Contents

AUDITORS’ FOREWORDiii

ABBREVIATIONSiv

EXECUTIVE SUMMARY1

Introduction1

The2011–12ContextforBSMSImplementation2

ProgressinimplementingScheduleB–Itemsforspecialmention3

Recommendations7

RecommendationsofPreviousIAG-SalinityReportsNotConsideredElsewhere8

  1. INTRODUCTION12

ObjectivesandStructureoftheBasinSalinityManagementStrategy 12

TermsofReference13

  1. IMPLEMENTATION OF THE BSMS15

Element1:DevelopingcapacitytoimplementtheBSMS18

Element2:Identifyingvaluesandassetsatrisk20

Element3:Settingsalinitytargets22

Element4:Managingtrade-offswithavailablewithin-valleyoptions24

Element5:Implementingsalinityandcatchmentmanagementplans 25

Element6:Redesigningfarmingsystems26

Element7:Targetingreforestationandvegetationmanagement27

Element8:Constructingsaltinterceptionworks28

Element9:Basin-wideaccountability30

APPENDIX 1: INDEPENDENT AUDIT GROUP FOR SALINITY – TERMS OF REFERENCE 40

APPENDIX 2: BASIN SALINITY MANAGEMENT — SCHEDULE B43

APPENDIX 3: SALINITY REGISTERS (as at 30 October 2012)46

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List of figures

Figure1:MeandailysalinitylevelsatMorganfromJuly2000toJune2012(greyline)comparedtomodelledsalinity levelswithout saltinterception schemesimproved landand watermanagementactions andadditionaldilutionflows(‘nofurther intervention’scenario)(greenline), and averagedailyMurrayriverflow(blue)betweenLock1andLock2.Thedifferenceisattributedtosalinitymanagementactions. 5

Figure2:DesignECBenefitsandtimelineofimplementationforBSMSSaltInterceptionSchemes 29

Figure3:ModelledprojectionsofMorgan95%ECversusnetSalinityCreditontheregisters 37

List of tables

Table1:Themodelledsalinitylevels(EC)atMorgan,SouthAustraliaforbaselineyear1988andthe2012year,incorporatingtheimplementedsalinitymanagementsbasedonthe1975to2000 benchmarkperiod. 4

Table2:ModelledprojectionsofMorganECforcurrentregistersandfuturebalancedregisters. 36

Table 3:Percentage of entriesin the registers withconfidence ratings of “high”to “very low” andprovisionalentrieswith“low”ratings. 38

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Executive Summary

Introduction

InAugust2001,theMurray-DarlingBasinMinisterialCouncil(MDBMC)launchedtheBasinSalinityManagementStrategy(BSMS)[1].InDecember2008theMurray-DarlingBasinCommissionwassucceededbytheMurray-DarlingBasinAuthority(MDBA).ScheduleCtotheMurray-DarlingBasinAgreement,whichsetdown thelegislativeframeworkfortheimplementationofthe BSMS, became ScheduleBtotheMurray-DarlingBasin Agreement,whichisSchedule1totheWaterAct2007(Commonwealth).

ScheduleBprovidesfortheappointmentof“independentauditorsforthepurposeofcarryingoutanannualaudit”,whosetaskistoreviewprogressonimplementingtheBSMS.Thethreemembersofthepresent IndependentAuditGroupforSalinity(IAG-Salinity)wereappointedinOctober2008.

TheTermsofReferencefortheIAG-SalinityandScheduleBrequiretheIAG-SalinitytoreviewprogressontheBSMSbothbroadlyandintermsofthestepslaiddownintheSchedule.TheTermsofReferencealsorequiretheaudittofocusonthespecificmeasurementandrecordingofprogresswiththeBSMS,andtheoutcomesat30thJuneeachyear.

This reportpresentsthe consensusviewthattheIAG-SalinityhasreachedinundertakingtheAudit coveringthe2011–12financialyear.Thestatecontractinggovernments,theAustralianCapitalTerritoryandtheMDBAsubmittedreports ontheir activities, valleyreports, the statusof 5-year rollingreviews and BSMSSalinity

Registerentriesoradjustments. The Australian GovernmentDepartment of Sustainability,Environment, Water,Populationand Communities alsosubmitted a briefreport related to environmentalwatering activities.

TheauditprocessadoptedbytheIAG-SalinityincludedareviewofthesereportsandtheSalinityRegisters.ThiswasfollowedbymeetingswithrepresentativesofthejurisdictionsandwithmembersoftheMDBA.

Therecommendationsweredevelopedandjurisdictionsgivenanopportunitytoprovide commentsonthedrafttext oftheaudit report.

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The 2011-12 context for the BSMS Implementation

In2011–12thehighrainfallacrosstheBasin,significantfloodingand recoveryofthewaterlevelsintheRiverMurrayanditsstoragesmeantthat1.7milliontonnesofsaltpassedMorganandaround2.0million tonnesofsaltflowedtothesea.Thiswasabout70%ofthepreviousyear’ssalttransporttothesea.Thecontinuousflow andslowfloodrecessionmeantthatthe expectedhighsalinitiesonapost-floodrecessiondidnotoccurinthelowerMurraybutincreasedElectricalConductivity(EC)wasobservedintheunregulatedriversinanumberofthenorthern catchments.The completionoftheBasinPlanhasresolvedanumberof contentiousissuesraisedin previous Audits, in particularthe idea of a salinity targetbelow Morgan. The resource requirementsofpreparingtheBasinPlanhaddelayedanumberofcriticalissuesassociatedwiththeBSMSbutthesewerenowprogressing.Whiletherewashighco-operationbetweenthejurisdictions,theuncertaintysurroundingthefunding of the jointprogram of worksis an ongoingconcern for thefuture of theprogram.

ThisisthethirdyearthattheBasinSalinityTarget,atMorganof800ECfor95%ofthetime,asdefinedinScheduleB,duringthebenchmarkperiodhasbeenreached.Workundertakentounderstandpostfloodsalinitypeakshasdemonstratedthatthesaltinterceptionschemes(SISs)andhighflowsinthelowerendoftheriverhaveminimisedanysalinitypeaks.

Thehighflowshavereducedsalinitiesinthelowerlakes(althoughLakeAlbertsalinityisstillhigh)and thehigherrainfallisagainresultinginrisesinwatertableswithindrylandcatchmentsandinirrigationareas.Thejurisdictionsarecloselymonitoringthesituationandkeepingthepublicinformedabouttrends.Theexpressionofdrylandsalinityinthelandscapeiscyclicalandrelatedtorainfallpatterns.

ItisevidentfromthesubstantialincreaseinknowledgeofthesalinityprocessesandtrendsintheBasin,theprojected2050levelsofsalinitypredictedin1999wereover-estimated.TheIAG-Salinityheardfromalljurisdictionsthatfundingpressureswillresultinthefundersseekingincreasedefficienciesintheprogramandarationalisationofeffortparticularlyinthemonitoringofsalinitytrends.Itisveryimportantthattheprojectedsalinityriskanditslikelyimpactsarere-evaluatedwithallrelevantinformationsothatfutureinitiativescanbebesttargetedtoensuresignificantgainsinsalinitymanagementoverthelastseveralyearsaremaintained.

ThepurchaseofwaterbytheCommonwealthfromirrigationentitlements,theimprovementofirrigationpracticeandtheuseofthatwater forecologicalpurposesisstronglysupportedbuttheneedtomanagethesalinityimpacts of useof this water forenvironmental purposes is critical.While the principles foraccounting forthesalinityimpactsofusingenvironmentalwaterhavebeendraftedbytheEnvironmentalWaterSalinityAccountabilityTaskforce,thereisnotyetanagreementontheaccountabilityofanysalinityimpactsordilutionbenefitsandthe responsibilitiesfornotifyingtheMDBAofanyreportableactionsthatmayhaveaneffectonsalinityoutcomeswithintheBasin.Muchmore stillneedstobedoneandtheCommonwealthEnvironmentalWaterHolder(CEWH)shoulddeveloptheproposalsforthemanagementofsalinityrisksposedbytheuseofthewaterinconsultationwiththeBSMAP.Suggestedstepsare:

  • Determinethechangeinsalinityriskfromretiringsomeirrigationactivityfromareaswherethereisahighgroundwatermoundingsotheregisterentriescanbeadjusted.

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  • Modelthemanipulationofflowregimeswiththevolumesofwaterpurchasedforenvironmentalwateringtodeterminethepositiveimpactonin-riversalinityiftheflowisprovidedattheappropriatetimeandtheimpactofwateringiconsitesadditional tothoseidentifiedunderTheLivingMurray(TLM)program.
  • DevelopscenariosthatwillhelpinformtheapplicationoftheEnvironmentalWaterSalinityAccountabilityTaskforceagreedprinciplesandproposedresponsibilitieswhenmanagingenvironmentalwater.
  • DecideonthejurisdictionalresponsibilitiesandaccountabilityforsalinityregisterentriesunderScheduleBoftheWaterAct2007anddeterminehowtheywillberecorded.

WhiletheBSMShassomethreemoreyearstorun,circumstanceshavechangedfromwhenitwasfirstconceived.Theseinclude reducedfunding,thesignificantvolumeofenvironmentalwateravailable,improvementinirrigationpractices,aprioritisationofat-riskupstreamcatchments,thecoalseamgasindustry,the increasing number ofcoal mines and thepending implementation of the BasinPlan. It is importantthatwork commenceassoonaspracticaltore-assessthepredictedsalinityimpactsandthemanagementandfunding requiredtoretainthegainsthathavebeenmadethroughtheimplementationoftheBSMS.

TheSISshavebeentheprimarysourceofsalinitycreditsthatappearinthe registers.Thecostofrunningand maintainingtheinfrastructure ishighandthere maybeopportunitiesto makesomeefficiencywithoutcompromisingthegainsmade.AreviewoftheSISsisunderwayanditiscriticalthereviewconsidertheoperationsrequiredtomeettherevisedsalinityriskfortheBasinfor2050asdiscussedaboveratherthanfocussingonshorttermsavings.

Progress in implementing Schedule B – items for special mention

Implementation of the BSMS

ItisevidentthattheimplementationoftheBSMShasbeenundertakenintwomainareasofactivity.

1)The first area has been a very successful works and measures program where the SISs are nearing completion and have delivered the majority of the salinity credits. In 2011–12 the SISs diverted approximately 363 000 tonnes of salt away from the river. This together with continuing model development by the jurisdictions has decreased the uncertainty in the salinity registers. The works and measures program and the rehabilitation of irrigated landscapes to reduce salt accessions (and manage for other salinity benefits) have been highly successful. The SISs alone (those established under the BSMS) will deliver a salinity reduction of greater than 61 EC at Morgan by 2012 and a benefit of $17.7 million per year (in 2005 dollars) out of a total of $23.8 million benefit obtained from the BSMS implementation.

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2)ThesecondareaofactivityconsistsoftheremainingelementsoftheBSMSwhichrelatetolandbasedsalinitymitigation. Further studiesof the upland catchmentareas has demonstrated thatthere are fewer highriskcatchmentsthanoriginallypredictedandthehighriskcatchmentscanhavemanagementactionsapplied, appropriate tothesoil andland systemthatcanmoderatethesalinityrisk.Analysisofdatacollectedduringtherecentwetperiodthatfollowed thedroughtconfirmsacyclic salinityproblemrelatedtothe levelofthewatertablethatrisesinwetyearsbothinirrigationanddrylanddistricts.Thedevelopmentofthecoalseamgas(CSG)industryandtheincreaseincoalmines,whichhaveaby-productofsignificantamountsofwaterandsalt,willalso adda newdimensiontotheprioritisationofcatchmentsatrisk.

AnactivityunforseenwhentheBSMSwasarticulated,butraisedintheMid-Term-Review,isthedevelopmentoftheallocationofwaterfortheenvironment.ThishascommencedthroughTLMprogramandthesalinityimpactsofthisprogramhavebeenanalysedandarereadytobeaccountedfor.Thepurchaseoflargequantitiesofwaterbygovernmentsinthe leaduptotheBasinPlan,whilewelcomed,stillrequiressomeworktobeundertakenin accountingfor the salinityimpacts ofthe use ofthis water.

CurrentsalinityManagementintheBasin

ThemodelledsalinitytargetatMorganoverthebenchmarkperiod,i.e.below800ECfor95%ofthetime,hasbeenmet forthethirdyearinarow.TheSISprogramhas contributedtothissuccessinlowriverflowyearsbyreducing highlysalinegroundwateraccessionstotheriver.Dilution fromhighriverflowsoverthelastfewwetyearshashadasignificanteffectalso.Table1showsthatthemodelpredictions forriversalinityatMorganovertheBenchmarkperiod(1975-2000),arelessthan800ECfor96%ofthetime.

Table1:Themodelledsalinitylevels(EC)atMorgan,SouthAustraliaforbaselineyear1988andthe2012year,incorporatingtheimplementedsalinitymanagementsbasedonthe1975to2000benchmarkperiod.

Time interval / Average / Median (EC) / 95 percentile (EC) / % Time 800 EC / % Time < 800 EC
ModelledBaseline (1988)
conditions1975–2000 / 665 / 666 / 1058 / 28 / 73
Modelled2012
conditions1975–2000 / 506 / 480 / 781 / 4 / 96

TheeffectofsalinitymanagementintheMDBonsalinityatMorganbasedonactualmeasurementsandmodelledsalinityifmanagementhadnotoccurredisshowninFigure1 forthedurationoftheBSMS.Withoutsalinitymanagement,salinityatMorganwouldhaveexceededthe800ECtargetcontinuouslyfromJune2007toJanuary2009withoccasionalbreachesinotheryears.ThecontinuoushighflowsintheRiverMurrayoverthepasttwoyears(i.e.August2010untilJune2012)havebeenconsiderablylargerthanthesaltinflowsintotheriver.ThesignificantreductioninsalinityatMorganinthedry years,particularly2006to2010showstherelevanceoftheactionsundertheBSMSinreducingthesalinityinthe lowerMurray.ItisimportanttocontinuetomonitorthistargetasirrigationfootprintsandriverflowschangeundertheimplementationoftheBasinPlan.

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Figure1:MeandailysalinitylevelsatMorganfromJuly2000toJune2012(greyline)comparedtomodelled salinitylevelswithoutsaltinterceptionschemesimprovedlandandwatermanagementactionsandadditionaldilutionflows(‘nofurtherintervention’scenario)(greenline),andaveragedailyMurrayRiverflow(blue)betweenLock1andLock2.Thedifferenceisattributedtosalinitymanagementactions.

SalinityOutlook

TheBSMSforwardpredictionsofsaltmobilisationintheuplandcatchmentsstatedintheBSMSin2001areexpectedtohavebeenanover-estimationgiventheimprovedinformationnowavailableabouttheuplandcatchments,thecurrentbuybackofwaterforenvironmentaluse andtheimpendingimpactofclimatechange.

It is important to again determine the Basin salinityrisk particularly given the budget pressures facinggovernmentsandtheneedtomaintainthegainsthathavebeenmadeinmanagingsalinityrisksintheBasin.

WhiletheSISshavebeenhighlysuccessful,furtherconsiderationshouldbegiventobore-fieldoptimisationto ensurethebestoutcomefortheriverandits environmentsatthelowestoperationalcost.Inparticular,thedilutionresultingfromsomeenvironmental wateringactivities,suchas increasedriverflowswhen sendingwater downstreamtoenvironmentalsites, mayallow SISpumpingto be delayedintheshort-term,buttheSISinfrastructurewillberequiredinthelong-termtocounterprojectederosionofsalinitycredits.Arevisedassessmentwillensurefuturebudgetdecisionsarebasedonthebestinformationavailable.

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FloodRecessionSaltRisks

Thefirstphaseoftheimpactoffloodrecessiononthesaltriskprojecthasbeen completedandthesecondphaseof the project which examines optionsfor operating the system to reduce therisk will be undertaken in2012/13.WhiletheRiverMurraydidnotexperienceincreasedsalinitybecauseofthecontinuousflowofwater,anumber ofunregulated streamsin thenorthern uplandcatchmentswere affected.This demonstratesthe risksstillexist.

EnvironmentalWatering

ProgressisbeingmadeontheunderstandingofthesalinityimpactsandtheaccountabilityforsalinityimpactswiththeanalysisofTLMprogramwhereanumberoficonicsiteswillbewatered.Thisexperience stillneedstobetranslated into the recently purchased environmental water held by the Commonwealth. It is important thatthisis doneincollaborationwith thestatesthrough BSM AP and responsibilities accountedforintheregisters.

Coal Seam Gas and Coal Mines

Queensland and New South Wales have been developing regulatory and compliance monitoring regimes to manage the significant expansion in CSG exploration and development that is occurring. In New South Wales the expansion in open cut and underground coal mines are adding additional risks associated with the disposal of groundwater from the mine sites. While it is not known with any certainty how much water will be produced, the potential salt that will come with the water extracted to release the gas in Queensland alone is expected to be in the order of about 8 million tonnes in total or up to 400 000 tonnes annually. This is slightly more than all the SIS bore fields in the MDB capture each year. While there has been significant action in both Queensland and New South Wales to manage thestorageofbrineontheland,ifsaltdoesmakeitswaytothewaterwaysthenitwillneedtobeconsideredasanaccountableactionundertheBSMSsalinity registers.

EndofValleyTargets

TheEOVtargetsareanunder-ratedbutcriticalcomponentofthemanagementofsalinityintheBasin.New SouthWaleshasindicatedthatthetargetlevelssetin1999arenolongerappropriate.ThereviewrequestedbytheIAG-SalinitytorefinetheEOVtargetswillbeundertakenin2012/13.

LandManagementStrategies

Conceptualmodelshavecontinued tobeusedforprioritisingsub-catchmentswhichyieldsalinewater.Therecentwetperiodhasraisedwatertablelevelsindrylandsalinityareasandthedegreeisdeterminedlargelybyrainfallcycles.

TheMonitoringFramework

ThemonitoringofsitesintheBasintomeetEOVtargetsandthecompilationofdatatosupportmodelsandevaluatetrendsisessentialiftheBasinistobemanagedinasustainableway.ThesignificantlossofstafffromjurisdictionsacrosstheBasinhasputindoubttheadequatemanagementofsalinityinstrumentationparticularlyintheupstreamcatchmentsafterfloodeventsandextendeddryperiods.Whileefficienciescanbemadeinthenumberofsitesandboresmonitored,itshouldbeundertakenstrategicallysothatthecoresitesareadequatelymeasuredandmaintained.Areviewoftheappropriatesiteswouldbetterinformthisprocess.

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TheIAG-Salinity’s opinionregarding the balanceof salinity creditsand debits foreach state ScheduleB,Clause16(1)providesasfollows:

16. (1) A State Contracting Government must take whatever action may be necessary:

a)to keep the total of any salinity credits in excess of, or equal to, the total of any salinity debits, attributed to it in Register A; and

b)to keep the cumulative total of all salinity credits in excess of, or equal to, the cumulative total of all salinity debits, attributed to it in both Register A and Register B.

RegisterAcurrentlyshowsNewSouthWales,VictoriaandSouthAustraliatobeinnetcredit,whileRegisterBshowsNewSouthWalesandSouthAustraliatobeinnetcredit,andVictoriaslightlyindebit.Forthecombinedregisters,allthreestatesareincredit.

OpiniononRegisterbalances:

TheIAG-SalinityhasexaminedtheRegistersasprovidedforthisaudit,andhascometotheopinionthatNewSouthWales,VictoriaandSouthAustraliaareinanetcreditposition.

OpinionontheMDBA’saccuracyinmaintainingtheRegisters:

TheIAG-SalinityfoundnoinaccuraciesintheMDBA’smaintenanceoftheRegisters,asprovidedforincorporationintothisreport.

TheAuditdidnotidentifyanyrequirement toupdateindividualentriesintheRegistersincorporatedinthisreport.

Recommendations

ThefollowingaretherecommendationsoftheIAG-Salinityin descendingorderofpriority.

The Independent Audit Group-Salinity recommends:

  1. Redefinition of the salinity risk expected in 2050 to guide future program development

TheBSMAPupdatetheprojectedsalinityriskfortheBasinin2050asabasisforprioritisingfutureactions andfundingandbasedonpasttrends,worksandmeasures,impacts,environmentalwatering,possiblereducedirrigationfootprint,possibleincreasedagriculturalproductionandemergingsalinityrisks.

  1. Accountability for salinity impacts of environmental watering

a)The policy principlesfor environmentalwatering be evaluatedthrough modelledscenarios ofsalinityanddilution impacts,including lagtimes, ofvarious wateringoptions forselected iconsites outside TLMprogramandbeundertakenbytheCommonwealthEnvironmentalWaterHolder,theBasinSalinityManagementStrategyAdvisoryPanelandtheMurray-DarlingBasinAuthority.

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b)TheBasinwideplan andpolicyframeworkformanagingthepotentialimpacts andresponsibilityforreporting the accountable actionsfrom environmental watering asrequired under Schedule Bbe settledbetweentheCommonwealthEnvironmentalWaterHolderandtheoperatingjurisdictions.

  1. Outstanding submission of Salinity Register reviews

a)NewSouthWalesshoulddevelopandsubmittotheMurray-DarlingBasinaschedule fortheup-comingSalinity Register reviews;

b)Queensland should formally submitthe three outstandingSalinity Register reports.

  1. The Basin Salinity Management Strategy (BSMS) model success story

ThesuccessoftheBSMSispromotedtodemonstratehowgoodmulti-governmentprogramscanworkwhenroles,responsibilitiesandaccountabilitiesarewelldeveloped,anadaptivemanagementframeworkusedandwhereexcellentjurisdictionalcollaborationandcommitmenttoprogressingthestrategyoccurs.

  1. Review of the monitoring framework for the Basin Salinity Management Program

Reviewthemonitoringframeworktoensurespatialdistribution,prioritysalinityriskareasandenvironmentalwateringsitesarealladequatelyassessed.Thereviewtoincludeconfirmationofthemonitoringprotocol,maintenanceofinstrumentation,thehandlingofmissingdataandtheselectionofdatatomeettherequirementsforreal-timedataanalysisandpredictivemodellingofsalinityimpacts.

Determinationofpriorities

Therecommendationsinthisreportwerearrivedatthroughareviewofthereportsofthejurisdictions,theannualBSMSimplementationreports,andpastIAG-Salinityreports, followedbydiscussionwithrepresentativesofthejurisdictionsandtheCatchmentManagementAuthorities(CMAs)(wherepresent).

Recommendations of Previous IAG-Salinity Reports Not Considered Elsewhere

Manyoftheimportantrecommendationsfromthe2010–11and2009–10reviewshavebeenprogressedbutnot completed.Ratherthanbringingtheserecommendationsforwardasnewrecommendationstheyhavebeenclassifiedascontinuingorcompleted.The2013–14auditwillbeseekingareportonthecontinuingrecommendations.

Recommendations being Progressed:

  1. Priorityforuplandcatchmentactions(Rec6,2011):PrioritisationforNaturalResourceManagement(NRM) investment in managementactions for high salinityrisk sub-catchments be further developedbysynthesisingdatafromtherecentwetanddryperiods,reviewingconceptualmodelsandtoolsandapproachesbeingusedandpreparingguidelinesonpreferredapproachesandeffectivemanagement options.Theguidelinesaretoincludeemergingsalinityrisks.Progressing(NewSouthWales,QueenslandandVictoriaaredefiningprioritycatchmentsandmonitoringwater tablechangeswiththereturnofwetseasons).

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  1. TargetsandMonitoringsitesreview(Rec7,2011):AreviewprocessbeestablishedthatcombinesEOVsalinitytargetsoverthebenchmarkperiodwithreal-timetargetsthatcanaccountforlocalhighrisksalinityprocessesoperatingandprovidefeedbacktolocalcommunities.Progressing(MDBAreviewingduring2012–13).
  2. SaltInterceptionprogramreview(Rec8,2011):Thesaltinterceptionprogramisreviewedtoconsideroptimisingthesystemtakingintoaccounttheincreasingmaintenancerequirementandtheoperationalcostsandcapitalinvestmentmade.Progressing(MDBAreviewingduring2012–13).
  3. Updatedeconomicvaluationsintheregistersandforwardprojectionsbasedonsalinityrisk(Rec9,2011):The registersbe interpretedannually forpolicy makersproviding acurrent andforward economicvaluationbasedonthevaluesintheregistersbutwhichareincurrentdollarsandthe levelofcreditsneededinto thefuturetakingintoaccountanyincreaseincreditstomeetthetargetatMorgan.Progressing(Tobeundertakenintheregisterreview2012–13).
  4. Floodrecessionsalinityrisks(Rec1,2010):ThattheMDBAwithsupportfromtheBSMAPcontinuethisprogram as amatter of urgency and prepare theoperational planrequired to managethe salinity risks.Progressing(MDBAispreparingabriefforStage2).
  5. IrrigationSalinityAccountabilityFramework(Rec10,2010):ThatBSMAP,withsupportfromtheMDBA,tofacilitatethedevelopmentofaconsistentframeworkfortheaccountabilityofirrigationsalinityimpactsincludingimprovedknowledgeofdistrict-scaleirrigationrelatedgroundwaterrecharge;MDBAshouldcontinuecapturingtheirrigationimprovementmeasuresandunbundlingofwaterfromlandstoinformthisprocess;andMDBAshouldpromoteirrigationasaspecialapplication caseinrevisedgroundwatermodellingguidelinesbeingpreparedbytheNationalWaterCommission.Progressing(TheMalleeBSMS modelswere completeandtheMDBAandNSWaredraftingaprojectbrieffortheRiverinePlains;irrigationwasnotincludedasafocustopicintheAustralianGroundwaterModellingGuidelinesissuedinJune2012despiteMDBAhostingaworkshopforthebenefitoftheauthorsofthenewguidelines).
  6. SalinityexpertisefortheCommonwealthEnvironmentalWaterHolder(Rec11,2010):Tofacilitateappropriatesalinityaccountingandoperatingconditionsforenvironmentalwateringactivities,CEWHshouldconsider includingskills in floodplainsalt mobilisation on the CEWHEnvironmental WaterScientificAdvisoryCommittee.Increasedcollaborationisalsorequiredwithpartnergovernmentstoincorporatetheconsiderableexistingknowledgeandexpertiseavailable.Progressing.
  7. AlignmentofBSMSwithCatchmentActionPlans(Rec11,2009):ThatNSWseekcloseralignmentbetweenBSMSobligationsandregionalCatchmentActionPlanswithatransparentroleforCatchmentManagementAuthoritiesin meeting targetsparticularly for catchments withEOV targets through thedevelopment ofwithinvalleytargets,andthattheCMAsbesupportedinupgradingdatamanagementandreporting.Progressing.(ProgresshasbeenmadeinNewSouthWalesandisexpectedtobecompletedin2012–13withthefinalisationoftheCatchmentActionPlans).

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Recommendations Completed or Not Progressed:

  1. SalinityImpactZoningforSunraysiaNSW(Rec10,2011):NewSouthWalesreportsalowriskwithlittlenewdevelopment.NotProgressed.
  2. ResourcingtheBasinSalinityManagementStrategy(BSMS)(Rec5,2011):ThishasbeenovertakenbytheBasinPlanandnowtheneedistoresourcetheimplementationofthePlanappropriately.Completed.
  3. ConsistentBasin-widelandusedatabases(Rec12,2010):Whilethisrecommendationissupportedbymostjurisdictions each jurisdiction hasadata basewhereintegration could betested ratherthancreating aBasin-widedatabase.NotProgressed.
  4. Scienceskillsaudittosupportthesalinityprogram(Rec13,2010):TheBSMSprogramisbasedongoodscienceandtheorganisationstodatehavebeenabletosourcetherelevantexpertiseprimarilyfrom consulting firms. Given the reduction of staff that is occurring inthe jurisdictions it is hoped that theexpertise to managethecontractswillstill beavailableinthejurisdictions.NotProgressed.
  5. Definingtheuncertaintyintheregisteritems(Rec15,2010):Whilethishasbeenwidelysupportedithasbeentoocomplextoachieveusingthesuiteofmodelsemployed.NotProgressed
  6. Recordingthemitigationdecisionsrequiredduringthedrought(Rec16,2010):SouthAustraliahasdevelopedasetofdraftoperatingprotocolsformanagingtheRiverandLakesbelowLock1whichhasdrawnheavilyontheexperiencesofthedrought.Completed.(TheInternationalCentreofExcellenceinWaterResourcesManagement(ICEWaRM)facilitatedtwoworkshopsinAdelaideundertheLiving
  7. Laboratories program:ResponsetoDroughtinSouthAustralia:ACaseStudyinAdaptiveManagementon7December2011andRiverInfrastructureandRiskManagement–ResponsetotheMillenniumDroughton13December2012).
  8. SalinitytargetsbelowMorgan(Rec4,2009):TargetsbelowMorganhavebeenconsideredinthedevelopmentoftheBasinPlan.Completed.
  9. PikeRiverSIS(Rec9,2009):SouthAustraliahasfundedpartofthisschemeandtheremainderofthe constructionprogramisnotnecessaryforBSMSoutcomesbutwillbeconsideredaspartoftheenvironmentalmanagementofthePikeRiverfloodplain.Completed.

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BSMSMid-TermReview

Develop methods to account for and achieve environmental outcomes from salinity mitigation actions through integration across MDBA programs.

Thisisacomponentofthenewrecommendation2ofthisreport.

Increased emphasis on catchment actions to address salt mobilisation and more innovative measures to deal with the effects such as real time operation.

ThisrecommendationhasbeencompletedwithexcellentworkinNewSouthWales,VictoriaandQueensland.Theoptionof realtimetargetshasbeenconsideredundertheBasinPlan.

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1.INTRODUCTION

Objectives and Structure of the Basin Salinity Management Strategy

TheBSMSprovidesaframeworkforcommunitiesandGovernmentstoworktogethertocontrolsalinityandprotectkeyassetsandnaturalresourcevaluesintheMurray-DarlingBasin(MDB).Itsobjectivesareto:

  1. Maintain the water quality of the shared waterresources of the Murrayand DarlingRivers for all beneficialuses–agricultural,environmental,urban,industrialandrecreational.
  2. ControltheriseinsaltloadsinalltributaryriversoftheMDB,andthroughthatcontrol,protecttheirwaterresourcesandaquaticecosystemsatagreedlevels.
  3. Controllanddegradationandprotectimportantterrestrialecosystems,productivefarmland,culturalheritage,andbuiltinfrastructureatagreedlevelsBasin-wide.
  4. MaximisenetbenefitsfromsalinitycontrolacrosstheBasin.

TheobligationsthatprovidefortheimplementationoftheBSMSaresetdowninScheduleBtotheMurray- DarlingBasinAgreement,whichisSchedule1totheWaterAct2007(Commonwealth).

ScheduleBsupportseffectivesalinitymanagementby:

  • promotingjointworks,measuresandotheractiontoreduceorlimittherateatwhichsalinityincreaseswithintheMDB
  • providingfortheadoptionofsalinitytargets
  • establishingsalinityregisterstorecordsalinityimpactsandtoallocatesalinitycreditsandsalinitydebitstocontractinggovernments
  • providingformonitoring,assessing,auditingandreportingonprogressinimplementingthestrategy.

AchievementoftheBSMSobjectivesismeasurednotonlythroughtheSalinityRegisters,butalsothrough thedegreeofachievementofEOVtargetsandtheBasinSalinityTargetatMorgan.ProgresstowardsmeetingtheagreedEOVtargetsandthelandmanagementobjectivesisassessedthroughannualreportsfromthecontractinggovernmentsandMDBA.Thesereportsinclude valleyreports forthecatchmentswherean

EOVtargethasbeenadopted.AnindependentannualauditofthereportsandRegisterentries,andoftheperformanceofthecontractinggovernmentsandMDBA,isprovidedbytheIndependentAuditGroupforSalinity(IAG-Salinity).

AkeydriveroftheBSMSistheprincipleof“capping”increasesinsalinityoftheMDBbyasystemofsaltcreditsanddebits,managedbytheparticipatinggovernmentsthroughtwo majorthrusts.OneisjointinvestmentinSISs andassociated infrastructure,and the other isinvestment intarget settingand monitoring systems attheend-of-valleysinconcertwithplansandactions toimprovelandmanagementpracticesacrosstheBasin.Victoriahas set sub-targets for irrigationareas and upland systems so thatthey can monitor the effect ofthese ontheEOVtargets.

ThenineimplementationelementsoftheBSMSare:

  1. Developing capacitytoimplementthestrategy.
  2. Identifyingvaluesandassetsatrisk.
  3. Settingsalinitytargets.
  4. Managingtrade-offswiththeavailablewithin-valleyoptions.
  5. Implementingsalinity and catchment management plans.
  6. Redesigning farmingsystems.
  7. Targetingreforestationand vegetationmanagement.
  8. Constructingsaltinterceptionworks.
  9. Ensuring Basin-wideaccountability,monitoring,evaluatingandreporting.TheBSMScommencedin2001–02,andisscheduledforcompletionin2015.

TermsofReference

TheTermsofReferenceoftheIAG-SalinityoftheBSMSareattachedasAppendix1.AsummaryofScheduleB,includingitsprovisionsconcerningauditoftheBSMS,isattachedasAppendix2.

DevelopmentoftheannualauditandreportingprocesshasbeenasignificantachievementfortheBSMS.However,increasingsophisticationoftheprogram,theMid-TermReviewandrecentauditshavesignalledtheneedforamorerationalreportingandauditapproach.Asaconsequence,revisedauditTermsofReferenceweredevelopedandapprovedbyCommission(MDBC95–22Apr2008)andtransitionedtotheMDBAon15December2008whichincludes:

  • the development of anannual audit plan
  • arequirementthattheauditismorecloselyfocussedonthespecificScheduleBprovisions
  • thepotentialfortheauditorstoprovidetheMDBAandtheBSMAPwithashortcommentaryonissueswithimplicationsoutsideastrictinterpretationofScheduleB.

AssetdownintheAuditPlan,priorityareasforreviewinthisauditincluded:

  1. Registers:thoseScheduleBaccountabilitiesrequiredtobereportedtotheAuthorityandLegislativeandGovernanceForumontheMurray-DarlingBasin,particularlytheauditors’assessmentofwhethertheBSMSSalinityRegistersarea fairandaccurate recordingofthesalinityimpactsofactions;

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  1. Reviews:thoseRolling5-YearReviewswhichareduetobecompletedandassessed.However,wherethereviewshavenotbeencompletedwithinthetimeframessetdownbyScheduleB,somecommentshouldbeprovidedon:
  • thepotentialforimprovedestimates giventheavailabledataand developmentofanalyticaltoolssincethelast assessment
  • therelativerisksintermsoflikelihoodandconsequence,ascomparedwithothersalinityassessmentsthat havebeen, or shouldbe, undertakenby the contractinggovernments.
  1. 2011–12IAG-SalinityRecommendations:TherecommendationsmadebytheIAG-Salinityarebasedonthedraft2011–12AnnualImplementationReportsprovidedbyeachcontractinggovernmentandtheMDBA,andtheauditors’assessmentofprogressmadeagainstthe2009–10and2010–11recommendations.ThismayincludeastatementaboutprogressmadetodatebytheBSMSprogramasawholeontheMid-TermReview recommendationsanddirectionsnotingthatsomeofthose recommendationshavebeen consideredintheBasinPlan.

ThestepstakenbytheIAG-Salinityincarryingoutthe2011–12auditincluded:

  • assessingtheannualreportsofthejurisdictions
  • reviewingRegistersAandBwithMDBAstaff
  • travellingtoeachjurisdiction,meetingwiththerepresentativesofthecontractinggovernmentsandtheMDBA.These wereessentiallyall-daymeetingswiththecontactofficers,theirteamsofmanagersandspecialistsandinsomecases,managersofRegionalCatchmentManagementAuthorities
  • discussingtechnical,scientificandpolicyissueswithspecialiststafffromthejurisdictionsandtheMDBA,seekingclarificationorcorrectionofmisunderstandings
  • providingthemaindrafttexttojurisdictionalcontactofficersforfactualcomments.

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2.IMPLEMENTATIONOFTHEBSMS

Background

ThereportingofprogressisorganisedunderthenineBSMSElements.TheIAG-Salinity’sassessmentoftheneedsforactionunderdifferentelementssometimesleads tothesamerecommendation.Intheinterestsofreadability,wherearecommendationarisesasecondtime,itisrepeated.

The relativeprioritiesofthe recommendationsareshownintheExecutiveSummary.InthisChapter,eachrecommendation is accompanied by its prioritynumber.

Overview

TheBSMS,whichisnowinitstwelfthyear,hasbeenhighlysuccessfulashasbeendemonstratedbytheMorgantargetbeingmetforthepastthreeyears.WiththenegotiationsrequiredfortheBasinPlan,the IAG-Salinity notedlastyearthatthe cooperativearrangementsthatledtothesuccessoftheBSMSwereunderstrainbutwasnowpleasedthatthecooperativearrangementshavebeenrebuiltoverthepastfewmonthsandagreatdealofgoodwillexists.Consequentlyitisagain recommendedthatthesuccessofthestrategyandtheoperatingmodelbepromotedsothatthosenotdirectlyinvolvedintheprogramcanalsounderstandwhathasbeenachievedandhowthat cameabout.Themodelof cooperationthatisoperatingfortheimplementation,managementandaccountabilityoftheBSMSshouldbelookeduponfavourablybytheMDBAwhenestablishingthesuccessortotheBSMSandforotherrequirementsundertheBasinPlanarrangement.

Recommendation 4: The Murray-Darling Basin Salinity Management Strategy (BSMS) model success story.

The success of the BSMS be promoted to demonstrate how good multi-government programs can work when roles, responsibilities and accountabilities are well developed, an adaptive management framework used, and where excellent jurisdictional collaboration and commitment to progressing the strategy occurs.

Itisnotedthatthepressureonalljurisdictionstomakewisefundingdecisionsisparamountatpresent.TheBasinPlanwillleadtodifferentprioritiesandarrangementsifthejurisdictionsaretoimplementthePlan.WhilegreatprogresshasbeenmadeinmanagingsalinityintheBasin,therehasalsobeenanimprovementintheknowledgeofthesalinityprocessesandanincreaseinthewateravailable fortheenvironment.BothoftheseputindoubtthehighprojectionsforsalinityriskintheBasinaspredictedbytheyear2050intheoriginalbasisfor theBSMS.Anyfutureprogramandprogramefficiencymeasuresneedtobemadeintheknowledgeoftherisk.ConsequentlytheIAG-Salinityconsidersthattheriskneedstobeurgentlyevaluatedsothatfuturedecisionsonthe program can bemade in fullconfidence that the riskswill continue tobe managed into thefuture.

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Recommendation 1: Redefinition of the salinity risk expected in 2050 to guide future program development.

The BSM AP update the projected salinity risk for the Basin in 2050 as a basis for prioritising future actions and funding and based on past trends, works and measures, impacts, environmental watering possible reduced irrigation footprint, possible increased agricultural production and emerging salinity risks.

TheissuesthatareinfluencingthelevelofsalinityriskthathavechangedsincetheBSMSwasdevelopedare:

  • Thepurchaseofirrigationwaterandusingitforenvironmentalwatering.
  • Theincreasedknowledgeoftheimpactofuplandcatchmentsonriversalinity.
  • Thesalinityimpactinstreamsfromchangingthetimingofwaterdeliveryforenvironmentalwateringtoapossiblespringpeakfromaprevioussummerpeakforirrigation.
  • The risk posedby brine storage in thelandscape as aby-product frommanaging the largequantities ofgroundwaterextracted toreleasecoalseamgas,de-watercoalmines,theneedformodifyingassociatedvalleytargetsandtheaccountability foranyunforseensalinityexceedencescausedbythoseindustries.
  • ThepoliciesoftheNationalWaterInitiativeandtheBasinPlanontheoperationoftheRiversystems.
  • Theimpactofclimatechangeonwateryieldinthesystem.
  • The increased understanding of the debitsin the salinity registers overtime caused by legacies ofhistory.
  • Theincreasingmaintenanceandoperatingcostsofthesaltinterceptioninfrastructure.
  • Thepossible impacts ofcarbon credits inincreasing vegetation inhigh water yieldingcatchmentschangingsurfaceflowsandpossiblebase-flowstreamsalinitylevels.

ObservationsfromthePastFiveyearsofBSMSauditreviews

Thisyeartheauditgrouptooktheopportunitytotakeanoverviewofthelastfiveyears.BSMShasbeenhighlyregardedasaverysuccessfulapproachbothbythosejurisdictionsinvolvedandothersoutsidetheprocess.Someofthereasonsgivenforthesuccessare:

  • Theaccountabilityofsalinityactionsbyeachjurisdictionthroughtheregisters.
  • TheannualreviewsofprogressontheBSMSandreviewbytheindependentauditteam.
  • The process of 5 year review and accreditation of models to estimate salinity impacts at Morganintroducedarigorousprocessandallowedadjustmentascircumstanceschangedandtrendsemerged.

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  • The collegiatemodeof operationhasmostly fostered jointapproachesanddebate betweenjurisdictions.
  • Theemphasisoncontinualimprovementofactions andon-ground worksthroughinvestigations,educationprograms and funding initiatives, and theimplementation of the principles of adaptivemanagement,thatisplan-do-review-actapproachensuringthatactionsfollowthereviewphase.

SomeBSMSachievementsanddifficulties

Thestateswereaskedintheinterviews fortheirviewsontheachievementsandthedifficultiestheysawinimplementingtheBSMS.

Someoftheachievementsidentifiedwere:

  • Thesuccessfulcollegiateapproachtosalinitymanagementacrossthejurisdictions.
  • Jointgovernancedecidingandundertakingtheimportantprioritiesinsalinitymanagement.
  • Progressofthe9elementsfromconcepttoimplementation.
  • The abilityto raiseissuesfor thenorthernpart oftheBasin toachievea moreholisticBasin-wideapproach.
  • Implementing thecapand tradeapproaches towater management.
  • Wholefarmplanningwithproperlandmanagementandwithcommunitycommitment.
  • Therangeofnecessarygroundwatermodelsdevelopedandcertified.
  • Settingthescenesooperationaltargets andatargetbelowMorgan couldbe consideredintheBasinPlan.
  • Irrigationsalinityriskreducedinarangeofareas.
  • ThenearfinalisationoftheSISandtherecognitionoftheneedforsaltexportfromtheBasinwhilemaintainingwaterqualitytargetsintheriver.

Someissuesconsideredtoodifficulttoachievewere:

  • Taking a forward lookingview for theBasin has takenmuch longer thanexpected.
  • Securingresourcestocomplete thenecessaryactivitiesin areasonabletimeperiod.
  • Integrationofdatasourcesandbreakingdownof‘datasilos’forreadyaccesstonecessarydata.
  • ThedevelopmentoftheRapidAssessmentToolforfloodplainmanagement.
  • Theusefulandtransparentdatabasebehindthesalinityregistersbeingavailabletoawidergroup toallowtrackingofdecisionsandactivities.

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Element1:DevelopingcapacitytoimplementtheBSMS

The MDBA and partner governments will administer a comprehensive ‘knowledge generation’ program to support Basin and within valley planning and implementation.

The partner governments will assist catchment communities to implement national, Basin and state initiatives by improving access to and use of the knowledge and decision tools generated by investigations and salinity research and development. This process will be supported by further capacity building for catchment planning, including communication and education.

Catchments

Increasingtheknowledgeofsalinityprocesses hascontinuedwiththenearcompletionofsignificantresearchintothealluvialsalinityprocessesintheCondamineRivercatchmentinQueensland.Thecomplexityofgroundwaterinteractionsandthere-emergenceofshallowwatertablesintheuplandareaswheretheBasaltsoverlietheWalloonCoalMeasureshavebeenexamined.Theextensivegroundwaterirrigationinthecatchmenthasresultedinanetreductionofsaltleavingthecatchmentthroughstorageintheunsaturatedzone.

NewSouthWaleshasappliedthehydrogeologicallandscapes(HGL)conceptstothelandsintheCentralWestCMAandidentifiedanumberofhighsaltareasaroundwhichtheCMAcandevelopmanagementplans.TheHGLconceptisfocussedonsalinityriskmanagement.TheCatchmentActionPlans(CAPs)inNewSouthWalesarecontinuingtobeupgradedundertheguidelinesoftheNaturalResourcesCommission(NRC).Anactiveprocessofpeerreviewofsomeofthetargetsandexpectedbenefitswouldseemappropriate.

Victoriahas againoffered many workshops(forexampleWaterwatch,whole-farmplanning.improvinglandmanagementpractices,irrigationshedmeetings,andirrigatorfieldtours)andsomeCMAshaveestablished working groupsjointlywithcommunitymemberstofosteranddevelopactivitiesincluding wholefarmplanning,groundwater and salinitymanagement andfarm andenvironment groups.

South Australia hasfocussed onirrigation andhas implemented annualirrigator reporting,Land andWaterManagementPlanning groups and adraft Irrigation Code ofPractice which iscurrently beingtrialled. During2011–12, South Australiacollaboratedwith the UniversityofNaples(Italy) foratrialofhigh resolutionsatellitedatafortheIRRI-EYEIrrigation AdvisoryServicewhichaimstoprovidenear-real-time advice onagriculturalwatermanagement and irrigation efficiency.

Flood Management

Progressonthepost-floodsaltrecessionprojecthasbeenslowsincethereleaseofthephase1projectreport.The current post-floodrecession hasbeen different fromprevious floods witha verylong post-flood recession with continuing relatively highflows in the Murrayuntil around September2012, thus reducing themagnitudeofsaltaccession.Completionofphase2withrecommendedactionplanstoaddresssaltaccessionisexpected tobe completedin2012–13.ForecastingofsaltimpactsispossibleforthesouthernBasinareasallowingforthepossibilityofrealtimesalinitymanagement.

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ThefloodsinthenorthernpartsoftheBasin havesometimes shownsignificantincreasesinstreamsalinityinpostfloodperiods.Thisseemstobe causedbyhighergroundwaterlevelsandcontributiontothestreams.Someoftheprinciplesofphase1oftheprojectcouldbeconsideredforapplicability tothenorthernpartsoftheBasin.

EnvironmentalWater

TheongoingcollaborativeworkbetweentheCEWHandtheBSMAPhasimprovedcommunicationandallowed a wider and appropriate consultation withthe jurisdictions on salinity and environmentalwateringissues.Environmental watering if significant is a notifiableaction under the current BSMS protocols.CurrentlyCEWHmakesthedecisiontowateranenvironmentalsiteincommunicationwithastate.WhileCEWHandBSMAPhavecollectivelyconsideredthehighlevelprinciplesforaccountingforsalinityimpactsofenvironmentalwatering,thereareissues stilltoberesolvedonwhethertheCEWHortherelevant state(orstatesfor joint works ormeasures) has to account forthe salinity credits and debits.

The auditreportforthelasttwo yearshasrecommendedtheadditionofskills insaltdynamics,salttransportandfloodplainsalinitytotheadvisorycommitteeoftheCEWH.TheWindsorinquiryhasrecommendedimprovingknowledgeanddevelopingscientificandengineeringexpertiseaswellaschangestoaccountabilityandtransparencyfortheCEWH.

AlsosincetheWindsorInquiry–theHouseofRepresentativesStandingCommitteereportOfDroughtandFloodingRains:InquiryintotheImpactoftheGuidetotheMurray-DarlingBasinPlaninRegionalAustralia,theGovernmenthas:

  • establishedaseparateCommonwealthEnvironmental WaterOfficetosupporttheCEWH
  • continuedtoworkwiththeBasinstatesonanimplementationstrategyfortheBasinPlanandrivermanagement
  • establishedandappointedtheCommonwealthEnvironmentalWaterStakeholderReferencePanel
  • establishedtheCommonwealthEnvironmentalWaterAdvisoryCouncil(membersyettobeappointed)
  • re-namedtheCommonwealthEnvironmentalWaterScientificAdvisoryPanel(formerlyknownastheEnvironmentalWaterScientificAdvisoryCommittee).

OngoinggoodcollaborativerelationshipswiththeBSMAParerequiredifthesalinityconsequencesofenvironmentalwateringaretobeeffectivelyaddressed.Thereareanumberofoutstandingissuestodowithsalinitymanagementwhichstillconcernthejurisdictionsinvolved.

Modelling

ThepartnergovernmentshavebeenparticipatinginthedevelopmentoftheNationalHydrologicalModellingPlatform,whichheraldstheeventualreplacementofMSM-BigMod,IQQMandREALMrivermodelsby“Source”softwarefor consistent modelling of river basins andsalt transport. A Groundwater-Surface Water Interaction softwareTool(GSWIT)providessomedegreeofriver/aquiferinteractionbutnottothedegreethatcanbeachievedwithMODFLOWbasedgroundwatermodels.

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Communication

Allstates haveprocessesforcommunicationwith CMAsorregionalgroupsincludingvarious newsletter andtechnicalandwebcommunications.Howeverwiththedrasticallyreduced staffing levelsinstateagencies,someoftheseroles maybe rationalised.Past IAG-Salinityrecommendations onmaintainingsalinityskillsandexpertisehavenowbeenovertakenbystategovernmentbudgetreductions.

Element2:Identifyingvaluesandassetsatrisk

The partner governments will work with catchment communities to identify important values and assets throughout the Basin at risk of salinity, and the nature and timeframe of risk. This Strategy emphasises the triple-bottom-line approach, requiring a balance between economic, environmental and social values. It necessarily recognises that living with salinity is the only choice in some situations.

ThemodelledsalinitytargetatMorganhasbeenachievedforthethirdyearinarowassistedbytheactionstakenundertheBSMS.Howeverthereturnofthewetseasonsfollowingthedroughthasraisedwatertablesagainandthejurisdictionsarecloselymonitoringtherisetofollowthetrendandinformlandownersofthesalinityriskitposestotheirassets.

Builtassets

NewSouthWaleshasusedtheHGLprocesstoidentifytheriskareasforurbansalinitydevelopmentandhashadthisanalysisincludedinthelocaldevelopmentplans.APhDstudentiscurrently examiningthe costofurbansalinityinNewSouthWales.

CoalSeamGasWater

CSGwater containssignificantbutvariable concentrationsofsalt,withdissolvedsolidvaluestypicallyrangingfrom2000tomorethan10000mg/l.ItalsohasahighSodiumAdsorptionRatio(SAR)andmaycontain hydrocarbonsthathavethepotentialtocauseenvironmentalharm.BothQueenslandandNewSouthWaleshavedevelopedpolicyframeworkstoensurethesaltproduceddoesnotcauseenvironmentalharmandencouragesthebeneficialuseoftreatedCSGwater.ItisproposedtotreatmostCSGwaterbyreverseosmosis. Asubstantialamountofthetreatedwaterwillmostlikelybeusedforirrigationanditisessentialthatitsuseisstrictlycontrolledasitwillprobablycontinuefor20ormoreyears.

InQueenslandtheindustrysofarhasbeenfordomesticusebutoverseasexportswillcommencewhentheGladstoneLiquidNaturalGasproject comesonlinein2014.Itisexpectedtheindustrywillthenincrease10-foldwithanobvioussignificantincreaseinwaterandsaltdisposal.TheQueenslandWaterCommissionestimatesanaverageof125000MLperyear.Thebrinecancausesignificantenvironmentalharmifnotmanagedproperly.Overallabout8milliontonnesofsaltwillbeproducedoverthelifeoftheprojectsinQueensland.Whilethere area numberofoptions forits disposal,thebase caseis tostoreit insecure land-fillsreducingthe risk

ofitenteringtheMDBRivers.Thewaterfromthereverseosmosisplantscanbeusedforirrigationordeliveredto thestreamswherelocalwater qualityguidelineswillbeestablished toensurethecommunityenvironmentalvaluesareprotected.

Biodiversity

Theimpactsofdrylandsalinityonbiodiversityarehigh.AcrosstheVictorianareaoftheMDB,thepredictedriseingroundwater levelsisnotashighaswasoriginallypredicted.Howevertheincreasedrainssincethedroughthaveraisedgroundwaterlevelsagainputtingmanyofthebiodiversityvaluesandaquaticecosystemsatrisk.Victoriawill continue tomonitor the risein groundwaterlevels and keepthe community informedof the riskthisimposes.

Irrigation

Theirrigationareasarealsoatrisk.TheGoulburn-BrokenCMAforexamplereportedthat,thegroundwaterlevelsarerisinginirrigationareasasaresultoftheincreasedrainfallfollowingthedrought.Itwillcontinueto monitorgroundwater levelsas thereis apotential forsevere widespreadsalinisation tooccur, resultinginsignificantloss to irrigation assets anddegradation of most major wetlandsin the area.

BelowMorgan

Therearesignificantenvironmental,agriculturalandpublicwatersupplyassetsrequiringawaterallocationfromtheRiverbelowMorganandtheseneedprotection.TheIAG-SalinityunderstandsthatthishasbeenrecognisedintheBasinPlanwithsalinityobjectivesandtargetsproposedforassetsbelowMorgan.TheecologyofmanyofthefloodplainsandwetlandsinSouthAustraliaaredecliningbecauseofthehighsoilsalinityand lackoffloodingevents.Therecentcontinuoushighriverflowshastakenalotofsaltoutofthesystem.Theuseof environmental waterin these wetlandswill be beneficialbut will alsomobilise significant quantitiesof salt totheriver.TheimplementationofTLMprovidesamodelonhowthewateringoficonsitesmaybemanagedinthesalinityregisters. TheChowillaFloodplainIconSiteisthefirst to be managedandthefirstdraftofanoperatingstrategyis expectedtobe completedin2012-13.InitialstudiesontheeffectofapplyingenvironmentalwatertothePikeRiverfloodplainexpecttheshorttermimpactsmaybesignificantandrequireadvancedplanninganddecisionmakingtominimisesalinityimpacts ontheRiver.

Anoverallenvironmentalwatering planfortheBasin and schedulingofthewatering isrequiredtoensurethatthedifferentactionsalongtheriverdonotaccumulateandcauseasalinityissue.ThewholeareaoftheprovisionofRegisterentriesandtheresponsibilityfornotifyingtheMDBAwhenaccountableactionswilloccurisrequired.

Recommendation 2: Accountability for salinity impacts of environmental watering.

a)The policy principles for environmental watering be evaluated through modelled scenarios of salinity and dilution impacts, including lag times, of various watering options for selected icon sites outside TLM program and be undertaken by the Commonwealth Environmental Water Holder, the Basin Salinity Management Strategy Advisory Panel and the Murray-Darling Basin Authority.

b)The Basin-wide plan and policy framework for managing the potential impacts and responsibility for reporting the accountable actions from environmental watering as required under Schedule B be settled between the Commonwealth Environmental Water Holder and the operating jurisdictions.

Benefits of the BSMS

TheIAG-Salinityinthelastauditrealisedthattheassetsbeingprotectedwereundervaluedontheregistersastheyarepresentedin2005dollarsandmadearecommendationtoupdatethem.Howeverattemptingto updateto2012dollarshasprovendifficultasthebasisonwhichthevaluesintheoriginalcomparisonmayhavechangedovertime.JustusingConsumerPriceIndex(CPI)willnotreflectthetruevalueoftheassetsprotectedbyreductionsinsalinityandmakeitdifficulttocomparechangesovertime.IthasbeenagreedthatwhenthereviewoftheEOVtargetsiscomplete,the registerswillbereviewedandthevaluationalgorithmsupdatedtobeabletoreflectcurrentvalues.

Element3:Settingsalinitytargets

This element requires the adoption of end-of-valley targets to protect values and assets while providing for targets to be revised, as new information becomes available. The partner governments will empower catchment management organisations to advise on end-of-valley targets and determine within-valley targets and monitoring arrangements, under salinity and catchment management plans.