Murray Darling Basin
Murray Darling Basin
Background
The Murray–Darling Basin is the catchment for the Murray and Darling rivers and is composed of 23 river valleys extending from near Tambo in central Queensland to the mouth of the Murray River in South Australia. The Basin covers over one million square kilometres; equal to about 14% of the area of Australia.
While only about 4% of the Basin’s 530,000 gigalitre average annual rainfall runs off down the system, the Basin supports more than two million people, produces more than one–third of Australia’s food supply, including over half of Australian cereals grown for grain and carries 28% of the nation’s cattle herd and 45% of its sheep. The Basin includes 65% of Australia’s irrigated agricultural land. More information on the Basin can be found here.
In December 2008, the Basin states passed legislation to enable the Australian Government to amend the Commonwealth Water Act 2007, and created the Murray Darling Basin Authority (MDBA) as the agency responsible for planning integrated management of water resources of the Murray Darling Basin in the national interest. The Authority is made up of six members and was tasked with preparing a Basin Plan, including setting sustainable limits on water that can be taken from surface and groundwater systems across the Basin, and its implementation, monitoring and enforcement.
The Adopted Plan
Following a long and at times acrimonious consultation process, Federal Minister Tony Burke adopted into law the Basin Plan 2012, which commenced on 24 November 2012.
According to the Government, the Basin Plan 2012:
As the Basin water resources were seen as overallocated, a key element of the Basin Plan is the setting of sustainable diversion limits (SDL) and establishing a mechanism by which these are set over time. The 'Long-term average SDL' is defined as ‘the maximum long-term annual average quantities of water that can be taken, on a sustainable basis, from the Basin water resources as a whole, and the water resources of each water resource plan area’.
Each SDL must reflect an environmentally sustainable level of take, being the level at which water can from be taken from a river catchment or underground aquifer without compromising key environmental assets, key ecosystem functions, the productive base or key environmental outcomes for the water resource. A map of the Northern Basin showing the location of key catchments is shown in the Figure below.
Source: The Murray Darling Basin Authority
For surface water, the MDBA determined the Basin-wide SDL to be 10,873 GL per year, which represents a total reduction of 2,750 GL per year from the current baseline diversion limit (BDL). As at 30 September 2012 approximately 1577 GL of surface water had been recovered (57 per cent of the total) mainly from the southern Basin. The long-term average SDLs take effect on 1 July 2019 and after that there will be a register to monitor the cumulative take over time. The cumulative balance across all years must not be 20 per cent greater than a single year’s SDL for that resource unit, without the Basin State having a reasonable excuse.
SDL adjustment
The Basin plan allows for a surface water SDL adjustment mechanism when new initiatives are developed that achieve better environmental outcomes, or reduced social and economic impacts, relative to those considered in setting the initial SDLs. These can be initiatives that either:
Investments in irrigation modernisation and other water efficiency projects under the Sustainable Rural Water Use and Infrastructure Program (SRWUIP) are also expected to yield about 600 GL which will count towards bridging the gap to the new SDLs. As at 30 September 2012 approximately 316 GL of this had been secured.
Constraints, such as dam outlet capacities limit the ability to deliver environmental flows through active environmental water management. Easing constraints on the capacity to deliver environmental water (e.g. raising bridges to allow higher regulated flows are accounted as an ‘efficiency measure’. The MDBA is required to prepare a constraints management strategy within 12 months after the commencement of the Basin Plan. The Commonwealth program to ease or remove capacity constraints is expected to deliver an additional 450GL of environmental beyond the 2750 GL benchmark, to take total water reclaimed for the environment to 3200 GL.
SDL adjustments must operate in the net range of plus or minus 5per cent of the surface water SDL for the Basin. There are two phases of adjustments – an initial set occurring as soon as practicable after 30 June 2016; and a second, final adjustment commencing by 30 June 2024. Public consultation is also required before finalisation of an adjustment. On the basis of improved information groundwater SDLs may also be adjusted within plus or minus 5per cent of the SDL after mid-2016 or at any time after 30 June 2019.
Source: Environmental Water Recovery Strategy for the Murray Darling Basin. November 2012. Draft for Consultation. Department of Sustainability, Environment, Water Populations and Communities. Canberra.
Voluntary water recovery
The Commonwealth is undertaking programs to recover water for the environment but only from irrigators who voluntarily choose to participate. There will be no compulsory acquisition of water. The Commonwealth Environmental Water Holder (CEWH) may dispose of and acquire ‘held environmental water’ (HEW), which is water available under a water access right, a water delivery right or an irrigation right for the purposes of achieving environmental outcomes.
Environmental plans
The Basin Plan is required to include an environmental watering plan that provides a framework for decision-making under variable seasonal and climatic conditions. It must include the environmental objectives for the water-dependent ecosystems of the whole Basin, prioritisation of annual watering objectives, watering schedules, progress targets and a management framework for planned and held environmental water. Environmental watering should be undertaken having regard to the views of local communities and persons materially affected by the management of environmental water. The Basin Plan is also required to include a water quality and salinity management plan.
Critical needs and water trading rules
The Basin Plan is also required to provide water for critical human and non-human water needs. This includes water required for core human needs (drinking, food preparation and hygiene), for essential community services and for commercial and industrial purposes that are vital for the ongoing functioning of the community or national security. The Basin Plan includes arrangements to ensure priority is given to the delivery of this water, which is responsibility of Basin States to deliver.
The Basin Plan also sets out rules for the trading or transfer of water rights in relation to Basin water resources. The water trading rules aim to ensure free trade in surface water, increase the level of information available to lift transparency and ensure consistency in the rules governing trade across the Basin.
Further shared recovery of water for the environment
In addition to recovery of water within certain catchments, there is a further ‘shared’ or ‘downstream’ recovery of water that will be expected from zones within the Basin to ensure the overall health of the Basin’s major trunk rivers. Rivers in the northern Basin will only need to contribute to the needs of the Barwon–Darling River to the Menindee Lakes. For the Northern Zone which includes Queensland’s catchments there will be a further 143 GL per year contribution to the shared reduction. However, governments have agreed to establish a program of work, the Northern Basin Scientific Work Program, to be completed by the end of 2015 to review the basis for the northern shared downstream component and its equitable apportionment. The Strategy will be updated in 2016 to reflect the outcome of this program of work.
For the Northern Basin there is a total of 390 GL of water expected to be recovered for the environment, including the 143 GL shared component. Over 60 per cent of this has already been recovered.
Summary of Progress in water recovery for Queensland’s catchments at 30 September 2012:
Source: Environmental Water Recovery Strategy for the Murray Darling Basin. November 2012.
Northern Basin Advisory Committee
The Government has established the Northern Basin Advisory Committee (NBAC) to provide independent strategic advice to the MDBA on how an adaptive Basin Plan can be implemented in the northern Basin. This will include guiding the development and implementation of a three year work plan, identifying and prioritising key northern Basin issues such as the apportionment of the shared downstream reduction and options for SDL adjustment. NBAC will also support the involvement of existing 'localism' groups ensure the Basin Plan is informed by local knowledge and perspectives.
The Plan, the steps in its development and further information can be found here. Frequently asked Questions (FAQs) can be found here.
AgForce involvement in Plan development
During the development of the Plan AgForce engaged with the MDBA at various forums and through a number of submissions which can be read in the member section. We also had input to the Australian Government through the NFF Water Committee and with the Queensland Government via their Strategic Consultative Committee to promote proper consideration of the impacts of the Plan on northern Catchment communities.
Throughout the process, while desiring the development of sustainable water use in the Basin, AgForce called for a minimisation of the socio-economic impacts on irrigation dependent communities from diversion of water to the environment and for the involvement of primary producers and local communities in decision-making. This is particularly important around how ‘buy-backs’ are implemented. This consultation should extend to how to best achieve the recovery of water within catchments for environmental purposes and with the least social and economic impact on primary producers and the communities that they support.
Where to now?
Following the Australian Government’s adoption of the Plan, attention is now focussed on implementation. AgForce supports the MDBA proposed work program of environmental outcomes for the Northern Basin that will deliver scientific knowledge and assessment of social and economic impacts. This extends to promoting ways of recovering water that avoid or minimise socio-economic impacts. Where such impacts do occur, it is vital that sufficient Government resources are available to meet adjustment challenges and to cover the costs of Basin Plan implementation so these are not passed through to agricultural water users.
AgForce are supportive of the Commonwealth Government progressing the measured and voluntary purchase of water from the Northern Basin, including from the Condamine Alluvium groundwater resource unit, and the inclusion of a wider range of water entitlements, such as overland flow licenses in the Lower Balonne. AgForce also calls for an improved environmental monitoring program so that benchmarks can be developed and efficiency improvements can also be applied to the achievement of a range of environmental outcomes
Achieving a Basin Plan that successfully balances the environmental outcomes with a minimisation of the socio-economic impacts on irrigation-dependent Basin communities requires a strong local consultation process. AgForce will work to ensure that member’s interests are considered effectively during implementation of the Basin Plan.
Want to know more?
Dr Dale Miller
Senior Policy Advisor
AgForce Queensland
Phone: (07) 3236 3100
Fax: (07) 3236 3700
Email Dale
To read AgForce's recent Murray Darling Basin submissions please log in via the Members Login button (located at the top right of the screen).
Want to know more?
Click here to find out more about the Murray Darling Basin Authority.
Visit the Murray Darling Basin Authority website to see the final Basin plan.
Read the National Farmers' Federation's submissions on the Basin Plan.
Useful links:
Below is a list of MDBA fact sheets. For access to a comprehensive list of the MDBA's fact sheets click here.
Background
The Murray–Darling Basin is the catchment for the Murray and Darling rivers and is composed of 23 river valleys extending from near Tambo in central Queensland to the mouth of the Murray River in South Australia. The Basin covers over one million square kilometres; equal to about 14% of the area of Australia.
While only about 4% of the Basin’s 530,000 gigalitre average annual rainfall runs off down the system, the Basin supports more than two million people, produces more than one–third of Australia’s food supply, including over half of Australian cereals grown for grain and carries 28% of the nation’s cattle herd and 45% of its sheep. The Basin includes 65% of Australia’s irrigated agricultural land. More information on the Basin can be found here.
In December 2008, the Basin states passed legislation to enable the Australian Government to amend the Commonwealth Water Act 2007, and created the Murray Darling Basin Authority (MDBA) as the agency responsible for planning integrated management of water resources of the Murray Darling Basin in the national interest. The Authority is made up of six members and was tasked with preparing a Basin Plan, including setting sustainable limits on water that can be taken from surface and groundwater systems across the Basin, and its implementation, monitoring and enforcement.
The Adopted Plan
Following a long and at times acrimonious consultation process, Federal Minister Tony Burke adopted into law the Basin Plan 2012, which commenced on 24 November 2012.
According to the Government, the Basin Plan 2012:
- gives effect to relevant international agreements, including the Biodiversity Convention and the Ramsar Convention
- establishes and enforces environmentally sustainable limits on the quantities of surface water and groundwater that may be taken from the Basin
- meets Basin-wide environmental objectives including water quality objectives
- facilitates use of Basin water resources in a way that optimises socio-economic and environmental outcomes
- promotes development of an efficient water trading regime to maximise the productive use of water
- sets requirements that must be met by State water resource plans
- improves water security for all uses of Basin water resources.
As the Basin water resources were seen as overallocated, a key element of the Basin Plan is the setting of sustainable diversion limits (SDL) and establishing a mechanism by which these are set over time. The 'Long-term average SDL' is defined as ‘the maximum long-term annual average quantities of water that can be taken, on a sustainable basis, from the Basin water resources as a whole, and the water resources of each water resource plan area’.
Each SDL must reflect an environmentally sustainable level of take, being the level at which water can from be taken from a river catchment or underground aquifer without compromising key environmental assets, key ecosystem functions, the productive base or key environmental outcomes for the water resource. A map of the Northern Basin showing the location of key catchments is shown in the Figure below.
Source: The Murray Darling Basin Authority
For surface water, the MDBA determined the Basin-wide SDL to be 10,873 GL per year, which represents a total reduction of 2,750 GL per year from the current baseline diversion limit (BDL). As at 30 September 2012 approximately 1577 GL of surface water had been recovered (57 per cent of the total) mainly from the southern Basin. The long-term average SDLs take effect on 1 July 2019 and after that there will be a register to monitor the cumulative take over time. The cumulative balance across all years must not be 20 per cent greater than a single year’s SDL for that resource unit, without the Basin State having a reasonable excuse.
SDL adjustment
The Basin plan allows for a surface water SDL adjustment mechanism when new initiatives are developed that achieve better environmental outcomes, or reduced social and economic impacts, relative to those considered in setting the initial SDLs. These can be initiatives that either:
- Increase the supply of water for the environment without reducing water available for consumptive use (e.g. through reducing evaporation losses at suitable storages or improving river operation rules) or where environmental managers achieve the same outcomes more efficiently (‘supply measures’)
- Increase water use efficiency thus saving water required for consumptive purposes, for example investment in more efficient irrigation infrastructure e.g. lining channels or installing drip irrigators (‘efficiency measures’).
Investments in irrigation modernisation and other water efficiency projects under the Sustainable Rural Water Use and Infrastructure Program (SRWUIP) are also expected to yield about 600 GL which will count towards bridging the gap to the new SDLs. As at 30 September 2012 approximately 316 GL of this had been secured.
Constraints, such as dam outlet capacities limit the ability to deliver environmental flows through active environmental water management. Easing constraints on the capacity to deliver environmental water (e.g. raising bridges to allow higher regulated flows are accounted as an ‘efficiency measure’. The MDBA is required to prepare a constraints management strategy within 12 months after the commencement of the Basin Plan. The Commonwealth program to ease or remove capacity constraints is expected to deliver an additional 450GL of environmental beyond the 2750 GL benchmark, to take total water reclaimed for the environment to 3200 GL.
SDL adjustments must operate in the net range of plus or minus 5per cent of the surface water SDL for the Basin. There are two phases of adjustments – an initial set occurring as soon as practicable after 30 June 2016; and a second, final adjustment commencing by 30 June 2024. Public consultation is also required before finalisation of an adjustment. On the basis of improved information groundwater SDLs may also be adjusted within plus or minus 5per cent of the SDL after mid-2016 or at any time after 30 June 2019.
Summary of the Environmental Water Recovery and SDL adjustment mechanism
Source: Environmental Water Recovery Strategy for the Murray Darling Basin. November 2012. Draft for Consultation. Department of Sustainability, Environment, Water Populations and Communities. Canberra.
Voluntary water recovery
The Commonwealth is undertaking programs to recover water for the environment but only from irrigators who voluntarily choose to participate. There will be no compulsory acquisition of water. The Commonwealth Environmental Water Holder (CEWH) may dispose of and acquire ‘held environmental water’ (HEW), which is water available under a water access right, a water delivery right or an irrigation right for the purposes of achieving environmental outcomes.
Environmental plans
The Basin Plan is required to include an environmental watering plan that provides a framework for decision-making under variable seasonal and climatic conditions. It must include the environmental objectives for the water-dependent ecosystems of the whole Basin, prioritisation of annual watering objectives, watering schedules, progress targets and a management framework for planned and held environmental water. Environmental watering should be undertaken having regard to the views of local communities and persons materially affected by the management of environmental water. The Basin Plan is also required to include a water quality and salinity management plan.
Critical needs and water trading rules
The Basin Plan is also required to provide water for critical human and non-human water needs. This includes water required for core human needs (drinking, food preparation and hygiene), for essential community services and for commercial and industrial purposes that are vital for the ongoing functioning of the community or national security. The Basin Plan includes arrangements to ensure priority is given to the delivery of this water, which is responsibility of Basin States to deliver.
The Basin Plan also sets out rules for the trading or transfer of water rights in relation to Basin water resources. The water trading rules aim to ensure free trade in surface water, increase the level of information available to lift transparency and ensure consistency in the rules governing trade across the Basin.
Further shared recovery of water for the environment
In addition to recovery of water within certain catchments, there is a further ‘shared’ or ‘downstream’ recovery of water that will be expected from zones within the Basin to ensure the overall health of the Basin’s major trunk rivers. Rivers in the northern Basin will only need to contribute to the needs of the Barwon–Darling River to the Menindee Lakes. For the Northern Zone which includes Queensland’s catchments there will be a further 143 GL per year contribution to the shared reduction. However, governments have agreed to establish a program of work, the Northern Basin Scientific Work Program, to be completed by the end of 2015 to review the basis for the northern shared downstream component and its equitable apportionment. The Strategy will be updated in 2016 to reflect the outcome of this program of work.
For the Northern Basin there is a total of 390 GL of water expected to be recovered for the environment, including the 143 GL shared component. Over 60 per cent of this has already been recovered.
Summary of Progress in water recovery for Queensland’s catchments at 30 September 2012:
| Catchment | Baseline Diversion Limit (GL/year) | Sustainable diversion limit (GL/year) | Reduction required (GL/year) | Recovery at 30 September 2012 | Percentage of total recovery achieved |
| Paroo | 9.9 | 9.9 | 0 | 0 | 100% |
| Warrego | 128 | 120 | 8 | 8 | 100% |
| Nebine | 31 | 30 | 1 | 1 | 100% |
| Condamine-Balonne | 978 | 878 | 100 | 32 | 32% |
| Moonie | 84 | 84 | 0 | 1.1 | To the shared reduction |
| Queensland Border Rivers | 320 | 312 | 8 | 4.4 | 50% |
Source: Environmental Water Recovery Strategy for the Murray Darling Basin. November 2012.
Northern Basin Advisory Committee
The Government has established the Northern Basin Advisory Committee (NBAC) to provide independent strategic advice to the MDBA on how an adaptive Basin Plan can be implemented in the northern Basin. This will include guiding the development and implementation of a three year work plan, identifying and prioritising key northern Basin issues such as the apportionment of the shared downstream reduction and options for SDL adjustment. NBAC will also support the involvement of existing 'localism' groups ensure the Basin Plan is informed by local knowledge and perspectives.
The Plan, the steps in its development and further information can be found here. Frequently asked Questions (FAQs) can be found here.
AgForce involvement in Plan development
During the development of the Plan AgForce engaged with the MDBA at various forums and through a number of submissions which can be read in the member section. We also had input to the Australian Government through the NFF Water Committee and with the Queensland Government via their Strategic Consultative Committee to promote proper consideration of the impacts of the Plan on northern Catchment communities.
Throughout the process, while desiring the development of sustainable water use in the Basin, AgForce called for a minimisation of the socio-economic impacts on irrigation dependent communities from diversion of water to the environment and for the involvement of primary producers and local communities in decision-making. This is particularly important around how ‘buy-backs’ are implemented. This consultation should extend to how to best achieve the recovery of water within catchments for environmental purposes and with the least social and economic impact on primary producers and the communities that they support.
Where to now?
Following the Australian Government’s adoption of the Plan, attention is now focussed on implementation. AgForce supports the MDBA proposed work program of environmental outcomes for the Northern Basin that will deliver scientific knowledge and assessment of social and economic impacts. This extends to promoting ways of recovering water that avoid or minimise socio-economic impacts. Where such impacts do occur, it is vital that sufficient Government resources are available to meet adjustment challenges and to cover the costs of Basin Plan implementation so these are not passed through to agricultural water users.
AgForce are supportive of the Commonwealth Government progressing the measured and voluntary purchase of water from the Northern Basin, including from the Condamine Alluvium groundwater resource unit, and the inclusion of a wider range of water entitlements, such as overland flow licenses in the Lower Balonne. AgForce also calls for an improved environmental monitoring program so that benchmarks can be developed and efficiency improvements can also be applied to the achievement of a range of environmental outcomes
Achieving a Basin Plan that successfully balances the environmental outcomes with a minimisation of the socio-economic impacts on irrigation-dependent Basin communities requires a strong local consultation process. AgForce will work to ensure that member’s interests are considered effectively during implementation of the Basin Plan.
Want to know more?
Dr Dale Miller
Senior Policy Advisor
AgForce Queensland
Phone: (07) 3236 3100
Fax: (07) 3236 3700
Email Dale
To read AgForce's recent Murray Darling Basin submissions please log in via the Members Login button (located at the top right of the screen).
Want to know more?
Click here to find out more about the Murray Darling Basin Authority.
Visit the Murray Darling Basin Authority website to see the final Basin plan.
Read the National Farmers' Federation's submissions on the Basin Plan.
Useful links:
- Murray Darling Basin Authority Website
- Department of Sustainability, Environment, Water, Population and Communities –Water programs
- Queensland Department of Natural Resources and Mines (DNRM)
Below is a list of MDBA fact sheets. For access to a comprehensive list of the MDBA's fact sheets click here.
- Pathway of Basin Plan implementation
- The proposed “environmentally-sustainable level of take” of the Murray-Darling Basin
- Transitional and interim water resource plans
- Water Quality and Salinity Management Plan