Biosecurity Plan
© Director of National Parks 2014
Director of National Parks
GPO Box 787
Canberra ACT 2601
Director of National Parks Australian business number: 13051 694 963
This report should be cited as: Director of National Parks (2014) Pulu Keeling National Park, Cocos (Keeling) Islands: Biosecurity Plan. Director of National Parks, Canberra.
A copy of the report is available online http://www.environment.gov.au/topics/national-parks/pulu-keeling-national-park.
Acknowledgements
The Director of National Parks wishes to acknowledge the stakeholders and individuals who contributed to the preparation of this plan.
Version History
VERSION / DATE / AUTHOR / REASON FOR CHANGEFirst Draft / September 2013 / Colette Boraso / Original document
Final Plan / December 2013 / Colette Boraso / Inclusion of minor updates and corrections
Contents
1 Executive Summary 5
2 LIST OF PROPOSED ACTIONS 7
3 Introduction 9
Rationale 9
Aim and scope 9
Performance measures 10
4 Background information 12
The Cocos (Keeling) Islands 12
Horsburgh Island 12
North Keeling Island (Pulu Keeling National Park) 14
5 Biological invasions AND biosecurity 16
Current research 16
Biological invasions 16
Island biosecurity 17
Regional context 18
North Keeling Island (Pulu Keeling National Park) 19
Horsburgh Island 21
Stakeholders 21
Department of Infrastructure and Regional Development 21
Department of Agriculture 22
Australian Customs and Border Protection Service 22
Australian Defence Force (Royal Australian Air Force) 22
Australian Federal Police 23
Cocos (Keeling) Islands Shire 23
Cocos (Keeling) Island Tourism Association & Cocos (Keeling) Island Resource Centre 23
Port authority 23
Local community 24
Pondok owners (Horsburgh Island) 24
6 Existing biosecurity arrangements 25
Biosecurity requirements for Australia’s Indian Ocean Territories 25
Biosecurity management arrangements on Cocos (Keeling) Islands 25
Current biosecurity management activity levels on Cocos (Keeling) Islands 27
Pulu Keeling National Park 28
7 Risk assessment 29
Pathways 29
Species risk analysis 32
8 Threat prevention – black list species 34
Prevention strategy 34
9 Surveillance – high risk species 36
Surveillance measures 36
10 Incursion response – target species 38
Response decision making 38
Response preparation 38
Incursion response 39
11 Conclusion 40
12 References 41
13 Appendices 45
Appendix A Key stakeholder contact details 45
Appendix B Cocos (Keeling) Islands marine asset and threat matrix 46
Appendix C Biosecurity risk assessments for PKNP and Horsburgh Island 47
Appendix C1 Biosecurity risk assessment – Siam weed 47
Appendix C2 Biosecurity risk assessment – Rodent species 47
Appendix C3 Biosecurity risk assessment – Cottony urbicola scale & yellow crazy ant 47
Appendix D Biosecurity procedures 47
Appendix D1 Procedures for rodent management 47
Appendix D2 Procedures for weed management 47
Appendix D3 Procedures for yellow crazy ant management 47
Appendix D4 Threat prevention – field trip biosecurity checks 47
Appendix E Biosecurity guide for tour operators and visitors to PKNP and Horsburgh Island, Cocos (Keeling) Islands 47
List of Figures
Figure 1 The Cocos (Keeling) Islands in relation to the Australian mainland and Indonesia 13
Figure 2 North Keeling Island (Pulu Keeling National Park) 14
Figure 3 North Keeling Island camp and landing area 31
List of Tables
Table 1 The approximate number of exotic species on the southern atoll of the Cocos (Keeling) Islands and Christmas Island 19
Table 2 Pest status of invasive species established in the Cocos (Keeling) Islands and of potential concern to management of PKNP 20
Table 3 Biosecurity import/export requirements for Indian Ocean Territories 26
Table 4 Australian Government biosecurity arrangements for Cocos (Keeling) Islands 27
Table 5 Potential entry pathways to West Island 29
Table 6 Potential entry pathways to North Keeling Island (PKNP) 30
Table 7 PKNP Invasive species black list and watch list 33
Table 8 Surveillance methods for black list species 37
List of Abbreviations
CAMBA / China–Australia Migratory Bird Agreement
CBBR / Cocos buff-banded rail
CBBR RAP / Cocos Buff-banded Rail Recovery Advisory Panel
CKI / Cocos (Keeling) Islands
DAaF / Department of Agriculture and Food (WA)
DNP / Director of National Parks
DPaW / Department of Parks and Wildlife (WA)
ECD / Ecological Character Description
EPBC Act / Environment Protection and Biodiversity Conservation Act 1999 (Cwth)
IUCN / International Union for Conservation of Nature
IWS / Island Wide Survey
JAMBA / Japan–Australia Migratory Bird Agreement
PKNP / Pulu Keeling National Park (North Keeling Island)
ROKAMBA / Republic of Korea–Australia Migratory Bird Agreement
RAAF / Royal Australian Air Force
SIEV / Suspected Illegal Entry Vessel
1 Executive Summary
Emergent oceanic islands are generally ecologically unique as they are occupied by a suite of species that colonised from distant land masses serendipitously by natural dispersal. Their isolation, often over large spans of geologic time and a lack of natural predators, leads to a high degree of species endemism. Oceanic island ecosystems are fragile, vulnerable and highly susceptible to disturbance by invasive species because they are smaller in geographical area than continents and species occupy distinct niches. Therefore, the prevention of biological invasions is critical for oceanic islands that are managed for conservation, to preserve biodiversity and prevent the decline and extinction of endemic species.
Invasive species present complex policy, conservation management and operational challenges for national park management. Human induced biological invasions have occurred on many oceanic islands due to a lack of effective quarantine and have led to extinctions of endemic species, including on Christmas Island. North Keeling Island (Pulu Keeling National Park) located in the Cocos (Keeling) Islands chain, while low in terms of species endemism, has high conservation significance. This is primarily because it provides critical habitat for several seabird species, including an estimated 30,000 breeding pairs of the red-footed booby (Sula sula) as well as the endemic ground–dwelling Cocos buff-banded rail (Gallirallus philippensis andrewsi). North Keeling Island has not suffered the same degree of disturbance as the southern atoll of the Cocos (Keeling) Islands, many other oceanic islands or parts of mainland Australia. This means it can be a yardstick against which changes to similar islands in the Indian Ocean can be measured.
Pulu Keeling National Park is a Commonwealth reserve under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) and is managed by the Director of National Parks in accordance with the Act, the regulations made under it, and its management plan. The draft Pulu Keeling National Park Management Plan (in preparation) will highlight the need to develop and implement strict biosecurity strategies to assess and minimise the risk of biological invasion and the establishment of new invasive species and pathogens. These procedures have been developed to support these strategies.
The threat of biological invasion by exotic species exists and has the potential to negatively impact the biota of the park. There is an extensive range of threats on the southern atoll and further afield that could negatively impact upon the neighbouring park and the site of the translocation of the Cocos buff-banded rail, Horsburgh Island. Writing and implementing a biosecurity plan is a key step that will bolster the protection of the park’s natural values.
This biosecurity plan aims to provide an informed basis for future decision-making concerning possible improvements to biosecurity management of the park. Existing biosecurity arrangements have been examined to investigate the capacity to improve and increase the level of biosecurity. High risk species were evaluated and strategies for threat prevention and surveillance are recommended. Standard incursion response procedures have been written for Siam weed (Chromolaena odorata), cottony urbicola scale (Pulvinaria urbicola) and rodents. The standard operating procedures are designed to support park managers in preventing and preparing for biological invasions, including response decision making.
This biosecurity plan addresses the need to enhance biosecurity planning and response at multiple levels within park management in collaboration with a number of stakeholders. It sets out a comprehensive set of actions to address the threat of biological invasion and upgrade biosecurity management for Pulu Keeling National Park.
2 LIST OF PROPOSED ACTIONS
This biosecurity plan proposes the following actions to improve biosecurity management of Pulu Keeling National Park (PKNP) and, where applicable, Horsburgh Island.
Risk
ACTION 1 Undertake risk assessments to determine the likelihood of introduction and establishment of marine pests to PKNP.
Threat prevention strategies
ACTION 2 Signage—prepare additional signage in Cocos Malay (to complement the existing signs in English) to educate the community and visitors to PKNP and Horsburgh Island about the importance of quarantine. Signs to be erected at:
Ø Rumah Baru on West Island
Ø the Jetty on Home Island
Ø all small vessel boat ramps on West and Home Islands
Ø the launch beach near buoys on Horsburgh Island
Ø the jetty on Direction Island.
ACTION 3 Education—undertake the following programs:
· 3.1 Changes to online content:
Ø 3.1.1 change the Parks Australia website and seek amendment of the Cocos Keeling Tourism Association website to include messages about the importance of quarantine/biosecurity
Ø 3.1.2 change the Parks Australia website, and seek amendment of the Cocos Keeling Islands Tourism Association website, to include visitor/tour operator guidelines (Appendix E to this biosecurity plan).
· 3.2 Amend Parks Australia permits for PKNP tour operators to include strong biosecurity conditions and requirements:
Ø 3.2.1 tour operations will remain low frequency and impact or may be restricted in frequency in future years to mitigate impacts to the values of the park. However, promoting the voluntary guides and practices at the contractor, operator and community level will ensure correct information is provided to potential visitors
Ø 3.2.2 Parks Australia staff to arrange the distribution of the visitor/tour operator guidelines before the 100th anniversary of the grounding of SMS Emden occurs in November 2014. Any special arrangements provided by Parks Australia during the anniversary period to cater for visitation should to be carefully managed to ensure proposed activities do not impact upon the values of PKNP.
· 3.3 Include an article in the Atoll to bring attention to the new biosecurity effort for PKNP and Horsburgh Island, including photographs and wildlife updates to enhance community interest.
· 3.4 Include periodic messages in the Atoll as required to maintain interest in biosecurity and PKNP conservation in the community.
· 3.5 Use the Cocos Keeling Resource Centre distribution list to send out important emails to the community.
· 3.6 Convene a community meeting to encourage vessel owners to adopt relevant threat prevention measures.
· 3.7 Fit out all Parks Australia vessels with biosecurity prevention tools (e.g. rodent baits, zip lock bags) and inspect before use.
Surveillance measures
ACTION 4 Undertake regular surveillance activities according to the methods and timelines outlined in biosecurity procedures (Appendix D to this biosecurity plan).
ACTION 5 Given the logistical constraints of accessing PKNP, explore and implement if feasible alternative/remote methods of surveillance.
ACTION 6 Carry out the following activities to facilitate the surveillance program on PKNP:
· 6.1 Translate the biosecurity procedures into Cocos Malay.
· 6.2 Undertake a stocktake of current available surveillance equipment and determine the levels of equipment needed to maintain ongoing surveillance programs, including increased monitoring following SIEV arrivals.
· 6.3 Transport surveillance equipment to PKNP for storage and maintain adequate stock levels on West Island.
· 6.4 Develop new biosecurity datasheets (based on biosecurity procedures) to record ongoing and opportunistic surveys.
· 6.5 Prepare laminated photo identification cards depicting:
Ø high risk species (weeds, rodents, scale insect)
Ø native flora of PKNP.
Incursion procedures
ACTION 7 Include in communications among Parks Australia staff details of a possible incursion, the outcome of the confirmation of the species, the agreed timeline for the response plan and any outcomes of control programs.
ACTION 8 Purchase adequate stocks of equipment to prepare for possible incursions.
ACTION 9 Assess, quantify and manage any unidentified or unacceptable impacts on non-target species arising from use of chemicals in incursion responses.
3 Introduction
Rationale
Preventing biological invasions and invasive species management in national parks is a policy, conservation management and operational challenge for protected area managers. The term biosecurity is used to describe the prevention measures put in place to prevent exotic species from establishing and controlling or extirpating native species (Broome 2007). When exotic invasive species arrive, relevant government agencies endeavour to work rapidly to prevent the species from establishing. A key goal is to protect remote high value nature reserve islands by implementing comprehensive quarantine, surveillance and contingency response systems (Broome 2007). Early and rapid responses to biosecurity threats is not only an effective conservation measure but is also the most cost-effective way of managing invasive species (IUCN 2000, Browne et al. 2009, McGeoch et al. 2010).
The purpose of island biosecurity (Pacific Invasives Initiative 2011) is to:
· keep the island free of target species that have been eradicated
· keep the island free of new invasive species
· prevent the export of invasive species from the island to other islands.
Pulu Keeling National Park (PKNP) is a Commonwealth reserve under the EPBC Act and is managed by the Director of National Parks (DNP) in accordance with the Act, the regulations made under it and the reserve management plan. Parks Australia, a division of the Department of the Environment, supports the DNP in managing Commonwealth reserves including PKNP. Priorities for the improvement of biosecurity for PKNP will be identified in the Pulu Keeling National Park Management Plan which is in preparation at the time this biosecurity plan was prepared. The draft management plan will also incorporate a range of performance indicators to assess whether its objectives have been achieved.
Horsburgh Island is not a Commonwealth reserve and is managed by the Cocos (Keeling) Islands Shire. Parks Australia works collaboratively with the Shire to meet shared management objectives for the island. In 2013 a number of threatened Cocos buff-banded rail (Gallirallus philippensis andrewsi) were translocated from PKNP, the site of the only remaining population, to Horsburgh Island to establish a second viable population.