Risks and Management

Transcription

1 2:Quarantine Risks and Management Quarantine management of Barrow Island was first implemented by operators of the oilfield in the 1960s, and through continuous improvement has provided an effective layer of protection to the conservation values of the island. Quarantine management will form an essential component of the environmental management system for the Gorgon Development because the construction and operation of a gas processing facility on Barrow Island will result in a substantial increase above the current number of vessel shipments and aircraft flights to the island. Consequently, this will increase the potential for the introduction of non-indigenous species which could lead to irreversible and detrimental impacts to the ecological composition and function of the island s ecosystem through competition, predation, or habitat modification. To protect Barrow Island from potential introductions of non-indigenous species, the Gorgon Joint Venturers (the Joint Venturers) have developed a new approach to quarantine by developing a risk-based Quarantine Management System. As there is no precedent for a quarantine program of such rigor anywhere else in the world, the Joint Venturers have been guided by the specific advice of the Environmental Protection Authority to develop quarantine protection for Barrow Island. As a consequence of this advice, the Joint Venturers established a Quarantine Expert Panel, initiated an extensive and transparent process of community consultation, and in concert with the community and experts, developed of a set of standards for acceptable risk. The Joint Venturer s approach to quarantine management, which has been developed with input from the community and independent experts, is focused on the pre-border prevention of introduction of non-indigenous species, supported by contingencies for border and post-border quarantine controls. In this Draft EIS/ERMP, the application of this risk-based methodology is demonstrated for three priority pathways of entry to Barrow Island, and includes a description of potential quarantine barriers at significant steps in each pathway. The cumulative effect of such barriers will reduce quarantine risk to an unprecedented level of protection for the conservation values of Barrow Island. This process will be duly applied to all entry pathways to the island prior to the commencement of pathway activities, and will continue to be applied to subsequent phases of the proposed Development. 530 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

2 12: Quarantine Risks and Management 12.1 Introduction Barrow Island is internationally recognised for its conservation values and is an important asset to the conservation estate of Western Australia. It supports a diversity of species, some of which have naturally evolved in isolation from the mainland for over 8000 years and do not occur elsewhere. The island s conservation significance has been recognised under statute since 1908 when it was declared a Nature Reserve, and later proclaimed a Class A Nature Reserve in The subsequent provision for petroleum exploration and production operations on Barrow Island in the 1960s presented challenges to the ongoing protection of the conservation values of the island. However, through cooperative environmental management practices developed and implemented by the oilfield operator and Department of Conservation and Land Management (CALM), the conservation values of Barrow Island remain protected. An effective part of this environmental management regime has been quarantine management which has mitigated the possibility of introduction, and prevented the proliferation of potentially destructive non-indigenous species on Barrow Island. The Gorgon Development on Barrow Island would pose new quarantine challenges to the conservation values of the island. Activities associated with the proposed Development would increase the volume of cargoes and number of personnel movements compared to historical or current oilfield operations. These numbers would be particularly pronounced during the construction phase, and would remain at higher than current levels during the operational phase. The higher number of personnel and cargo movements to Barrow Island therefore presents a substantial increase in the potential for non-indigenous organisms to be transported to the island. In recognition of this increase in quarantine risk to Barrow Island, the Gorgon Joint Venturers (Joint Venturers) have adopted a risk-based approach to manage the risk down to an acceptable level. This approach has involved the adaptation of established risk management practices; and included the involvement of independent technical experts and members of the community to pursue the development of a world class Quarantine Management System (QMS) Quarantine Management Objectives The overarching objective of a quarantine strategy for the proposed Gorgon Development is to facilitate the construction and operation of a gas processing facility on Barrow Island and simultaneously protect the conservation values of the island. To support this objective, the Joint Venturers have developed a Barrow Island Quarantine Policy (Box 12-1). The Joint Venturers commit to support this policy through the development and implementation of a QMS, and in doing so, believe with a high degree of confidence that the conservation values of Barrow Island can and will be protected. Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 531

3 Box 12-1: Barrow Island Quarantine Policy 532 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

4 Key Quarantine Terminology In consultation with the community, a Quarantine Expert Panel (section ) and independent technical experts, the Joint Venturers have developed a glossary of quarantine terms. The key quarantine terms used throughout the chapter are provided in Box Additional definitions are provided in the Glossary Chapter Outline This chapter is a description of the Joint Venturers approach to the development of quarantine management options, and demonstrates the application of those options to the Gorgon Development. Section 12.2 details the approach to quarantine management on the basis of Western Australian Environmental Protection Authority (EPA) advice, and Section 12.3 provides an overview of the existing Barrow Island environment. Section 12.4 describes the risk-based methodology developed to manage quarantine and provides an illustration for the three priority exposure pathways. Section 12.5 is a description of the process of selection of quarantine barriers to reduce risk to acceptable levels. Section 12.6 provides an outline of the QMS. The chapter concludes with a summary statement that details how the Joint Venturers have addressed quarantine to date, and will continue to address quarantine in the event that the Gorgon Development proceeds. An outline of this chapter is illustrated in Figure : Quarantine Risks and Management Box 12-2: Key Quarantine Definitions Term Definition Term Definition Barrier Border For the purposes of assessing and managing quarantine risk, any physical, chemical, biological, procedural or administrative process which prevents a nonindigenous species from being introduced to a native environment outside of its natural range. The point of entry of cargoes, vessels or people to Barrow Island. (e.g. The marine pathway border is the waters surrounding Barrow Island; the air pathway border is the Barrow Island airport; and for the personnel, food and perishables pathway, the border is the village). Infection The contamination at any step in an exposure pathway of cargoes, vessels or personnel by non-indigenous species. Introduction The arrival of live non-indigenous species at Barrow Island via a pathway (e.g. cargo, vessels, personnel). Introduction is an outcome of infection at steps along a pathway. Non-indigenous Any species of plant, animal or species micro-organism not occurring (also taken naturally on Barrow Island and here to mean: marine environs whose presence introduced, there is due to intentional or invasive, alien, accidental introduction as a result exotic and of human activity. pest species). Breach Establishment The failure to undertake all of the requirements of the quarantine management protocol. The process of an introduced non-indigenous species successfully producing viable offspring with the likelihood of continued survival. Pathway A route of exposure which might enable non-indigenous species to be introduced to a native environment outside of their natural range. Incursion The discovery on Barrow Island of a live non-indigenous species. Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 533

5 Figure 12-1: Chapter Outline Quarantine Risks and Management Quarantine Risks and Management Quarantine Background Approach to Quarantine Management Summary Statement EPA Advice Quarantine Risk Management Quarantine Barrier Selection Key Issues: Key Issues: Key Issues: Key Issues: Key Issues: Conservation values of Barrow Island Historical quarantine management Involvement of independent experts Community consultation Development process for standards for accceptable risk Identification of threats Risk assessment methodology Demonstration of risk management for three important pathways Demonstration of risk management for three important pathways, marine vessels and rodents Development of standards for acceptable risk Demonstrate that standards can be met with a high level of confidence 12.2 Approach to Quarantine Management In recognition of the need to continue protecting the conservation values of Barrow Island, the Joint Venturers developed a multi-faceted approach for the management of quarantine for the Gorgon Development. This approach involved the adaptation of risk-based methodologies focused on pre-border prevention of the introduction of non-indigenous species, and is supported by contingencies for border and post-border quarantine controls. Implementation of quarantine management across all facets of the Gorgon Development will be facilitated within the framework of the QMS. It is intended that Joint Venturer and stakeholder responsibilities and authority for quarantine management will also be formalised through the Barrow Island Coordination Council (BICC) which will involve key government agencies such as CALM. The Joint Venturers have developed this approach with the assistance of a range of biosecurity and conservation specialists, and have been guided by the outcomes of the Environmental Social and Economic Review of the Gorgon Development on Barrow Island (ESE Review) (ChevronTexaco Australia 2003) EPA Advice In response to the ESE Review (ChevronTexaco Australia 2003), the EPA prepared a report entitled Environmental Advice on the Principle of Locating a Gas Processing Complex on Barrow Island Nature Reserve (EPA 2003). In this report, the EPA states in regard to the conservation values of Barrow Island, that the primary potential threat is the introduction of invasive organisms, particularly animal pests and weeds, including disease (EPA 2003, p. 2). The EPA also advised on a range of issues which should be addressed in any proposal referred for environmental 534 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

6 impact assessment under section 38 of the Environmental Protection Act EPA advice relevant to the development of a quarantine strategy for the Gorgon Development is detailed below: Precautionary approach: This approach requires any decision to proceed with development to be based on sound data, enabling sound judgement. If the project were to proceed, it could only be with a policy of zero tolerance of invasions target and an associated quarantine regime of sufficient, demonstrated rigor to achieve this (EPA 2003). Independent expert advice, transparent public processes, and development of acceptable risk standards: The EPA recommends that the proponent engage in the development of a set of standards for acceptable risks to the conservation values of Barrow Island. Such a process should include appropriate technical experts and be structured to ensure a high level of transparency and community involvement. The proponent be required to demonstrate to the EPA, on the advice of DLCM and the DoE, that the risk standards can be met, with a very high level of confidence (EPA 2003). Beyond best practice environment and conservation management: The EPA recommends that the developer be advised that the formal environmental impact assessment process under Part IV of the Environmental Protection Act will require clear demonstration of the developer s ability to meet any environmental and conservation risk standards. In doing so, they can expect to set new benchmarks in conservation management performance that go significantly beyond current best practice (EPA 2003). The approach adopted by the Joint Venturers to prevent the establishment of non-indigenous species on Barrow Island is consistent with the advice of the EPA. Specifically, this has involved the creation of the Quarantine Expert Panel, a transparent process of community involvement and engagement of independent experts, the development of a set of risk standards, and a study of quarantine programs to benchmark quarantine practices. These aspects of the approach to develop a quarantine management regime for the Gorgon Development are discussed in the following section Quarantine Expert Panel The Joint Venturers established a Quarantine Expert Panel (QEP) of recognised and experienced independent technical specialists to obtain the best possible advice to guide the development of an effective QMS for the Gorgon Development. Experts invited to participate represented a broad cross-section of expertise especially relevant to the management of quarantine issues. Such expertise included quarantine and biosecurity management, risk management, conservation, marine and terrestrial ecology, pest management and government regulation. The QEP consisted of ten members including an independent Chairman, and two observers representing Western Australian government agencies (Box 12-3). The Joint Venturers supported the QEP with a four person Secretariat which provided administrative support and advice pertinent to the proposed Gorgon Development. Participants (members, observers and the secretariat) at Panel meetings entered fully into all of the discussions, and brought the benefit of their expertise to discussions. The QEP initially developed a Charter to guide the conduct of its activities. Included in this Charter were the six specific objectives of the QEP, which are to: Establish standards for acceptable risk which are developed in consultation with stakeholders and which are broadly acceptable for the purpose of establishing an effective quarantine management system. Identify the major organism groups of concern and the required baseline surveys (designed to incorporate future monitoring). Provide the community with the opportunity to engage in the process for setting standards and delivering a world class Quarantine Management System. Establish practicable policies, processes, and responsibilities which meet the risk standards. Establish monitoring programs for detection of introduced species and compliance with procedures. Establish contingency and response plans. 12: Quarantine Risks and Management Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 535

7 Box 12-3: Quarantine Expert Panel Quarantine Expert Panel Purpose: To advise and steer the direction of quarantine management for Barrow Island, to meet the goal of no introduced species on Barrow Island and in the surrounding waters as an essential element in conserving the biodiversity of the area. Members Bernard Bowen Andrew Burbidge David Carter Keith Collins Diana Jones Malcolm Nairn Greg Pickles Sandra Potter Andre Schmitz John Scott Observers Warren Tacey Norm Caporn Secretariat Russell Lagdon Sean Reddan Richard Stoklosa Geoff Prior Chairperson Conservation Specialist Commonwealth Department of the Environment and Heritage Risk Management Specialist Western Australian Museum Biosecurity Specialist Western Australian Department of Agriculture Australian Antarctic Division Australian Wildlife Conservancy Commonwealth Scientific and Industrial Research Organisation Western Australian Department of Environment Western Australian Department of Conservation and Land Management Health, Environment and Safety Manager, Gorgon Development Environmental Advisor, Gorgon Development Risk Advisor, Gorgon Development Construction and Logistics Advisor, Gorgon Development The QEP first convened in November 2003 with a familiarisation tour to Barrow Island and the Welshpool logistics depot where existing Barrow Island quarantine facilities and practices were observed. The QEP met formally on eight occasions, during which time it considered a number of issues, provided advice on information needs, engaged in the community consultation process, reviewed research papers and made recommendations to the Joint Venturers. The QEP delivered a report to the Joint Venturers on 30th September 2004 (Technical Appendix D1). The outputs and strategic advice provided by the QEP can be summarised as: Contributed to the development of an appropriate risk assessment methodology for the protection of the conservation values of Barrow Island the How-to Guide for Conducting a Risk-based Assessment of Quarantine Hazards on Barrow Island (Technical Appendix D2). Provided advice on the development of an annotated bibliography of published and unpublished works related to Barrow Island. Provided advice on the application of the biosecurity management concept (i.e. pre-border, border, and post-border management of quarantine risk). Recommended the definition of biological groups of concern in order to facilitate efficient risk management practices. Provided advice on the potential pathways for the transport of organisms to Barrow Island. Provided advice on area of quarantine protection for the waters surrounding Barrow Island (refer to Section ). Identified three high-risk exposure pathways for priority attention to demonstrate the application of the risk management methodology, those being: i) sand and aggregate, ii) food and perishables, and iii) personnel and accompanying luggage. Reviewed and commented on the development of risk standards Report to the Community Consultation Meeting on the Risk Standards Workshops (Technical Appendix D3). Provided advice to guide the design and conduct of ecological terrestrial and marine field surveys. Provided advice to assist the development of protocol for corrective actions. Provided advice to guide the preparation of the QMS and a Quarantine Management Plan (QMP). The QEP also advised the Gorgon Joint Venturers that: The establishment of a non-indigenous species on Barrow Island would be unacceptable. Zero risk (i.e. zero chance of an introduction) is not practical. 536 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

8 The ecological consequences of the introduction of a non-indigenous species to the Barrow Island environment can not be predicted with any degree of confidence. Quarantine risk data are not available. The arrival of some non-indigenous species at Barrow Island would be outside the control of the Joint Venturers (i.e. natural causes and/or third parties may play a significant role in the introduction of species). In practical terms, not all non-indigenous species can be prevented from arriving at Barrow Island. This is particularly the case with micro-organisms as it would be impossible to describe the wide range of micro-organisms which may be transported to the island via a range of vectors. Potential threats posed by micro-organisms, and threats to the marine environment, present unique problems that can be managed through an adaptation of the risk-based approach. The proceedings of each QEP meeting were captured in the form of a one-page Brief Summary which was distributed to stakeholders shortly after each meeting. More detailed records of the discussions and proceedings of each meeting were recorded in an Outputs Document which was subsequently reviewed and ratified by the QEP as an official meeting record. These documents were made available to the public through the Joint Venturers website ( at Community Consultation Meetings and through direct postal distribution to interested persons or organisations. The QEP was also closely associated with the community involvement process. The QEP provided expert advice to the community through direct involvement by some members who attended Community Consultation Meetings, Technical Community Workshops, and Risk Assessment Workshops (Section ). The QEP regularly reviewed and commented on proceedings and issues raised by the community in such forums, and supported the process and outcomes of the Risk Standards Report prior to submission to the EPA. The Joint Venturers and the community have benefited from the high-quality specialist advice provided by the QEP. This has instilled confidence in both the process and outcomes delivered to date in the development of quarantine management options for the proposed Gorgon Development on Barrow Island. The Joint Venturers value the input provided by the QEP and commit to the ongoing engagement of such experts in future phases of the Gorgon Development Community Involvement Consistent with EPA advice, the Gorgon Joint Venturers have actively encouraged stakeholders and the community to become involved in discussions regarding the quarantine risk to Barrow Island. The Gorgon Joint Venturers approach has provided ongoing opportunities for all stakeholders to access relevant information and to express their opinions via a number of communication channels which are discussed in detail below. Community Involvement Process The community involvement process began with the identification of relevant community groups, independent experts, government and non-government organisations, sections of private industry, and members of the general public who have a potential interest in the quarantine management of Barrow Island. These organisations were subsequently invited by the Joint Venturers to participate in the community involvement process to address the quarantine issue for the proposed Gorgon Development on Barrow Island. A list of stakeholder groups identified and contacted during the consultation process is provided in Box Box 12-4: Stakeholder Groups and Organisations Invited to Participate in the Community Involvement Process Apache Energy Ltd Australian Institute of Marine Science Australian Marine Conservation Society Australian Marine Science Association (WA) Australian Petroleum Production and Exploration Association Australian Quarantine and Inspection Service Birds Australia (WA Group) Botanic Gardens and Parks Authority Bowman Bishaw Gorham Consulting Ltd Cape Conservation Group Care for Hedland Environmental Interest Group Chamber of Commerce and Industry Western Australia Chamber of Minerals and Energy of Western Australia Inc Commonwealth Department of Defence Conservation Commission WA Conservation Council of Western Australia Inc 12: Quarantine Risks and Management Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 537

9 Box 12-4: (continued) Stakeholder Groups and Organisations Invited to Participate in the Community Involvement Process Curtin University of Technology Dampier Port Authority Edith Cowan University Environ Australia Pty Ltd Environmental Resources Management Australia Pty Ltd Environmental Weeds Action Network (WA) Inc Fremantle Container Depot Marine Parks and Reserves Authority Murdoch University Nickol Bay Naturalists Club Pilbara Wildlife Carers Association Royal Society of WA Sinclair Knight Mertz Pty Ltd Technip Oceania Pty Ltd University of Western Australia WA Department of Agriculture WA Department of Conservation Land Management WA Department of Environment WA Department of Fisheries WA Department of Industry and Resources WA Museum WA Speleological Group Inc Waterbird Conservation Group Inc Western Australian Naturalists Club Inc Wilderness Society WA Inc Wildflower Society of WA Inc World Wide Fund for Nature WorleyParsons Ltd The Joint Venturers approach to community involvement was designed to encourage a high level of community input. This was achieved through direct notification of the Joint Venturers plans to engage in a process of consultation through: personal letters of invitation addressed to community and professional organisations with a potential interest in quarantine and conservation issues a series of newspaper advertisements in The West Australian internet access to quarantine material via the Joint Venturers website routine mail-outs of meeting proceedings and outcomes to parties who had registered an interest. The Joint Venturers also solicited direct consultation with members of the community to obtain feedback and facilitate an understanding of their respective positions and concerns. This was achieved through: community consultation meetings site familiarisation tours of Barrow Island and the Welshpool logistics facilities an interactive question and answer facility on the Joint Venturers website face-to-face meetings and discussions. Direct involvement of key members of the community in the development of quarantine options was achieved through workshops to address specific issues identified at Community Consultation Meetings (e.g. Risk Standards Workshops to develop community risk standards), and a QMS/QMP Workshop to assist the development of a Quarantine Management System. This process also included Technical Risk Assessment Workshops to investigate and assess levels of risk along particular pathways of entry to Barrow Island, and to develop quarantine barriers. The Joint Venturers have conducted four Community Consultation Meetings (Plate 12-1) and four separate Community Workshops up to the point of preparation of this Draft EIS/ERMP document. Community Involvement Achievements The direct involvement of the community has influenced the development of quarantine management options for the Gorgon Development, and has contributed to the following key outcomes: A report from the community on proposed quarantine standards for acceptable risk to protect the conservation values of Barrow Island. The establishment of priorities for work to be undertaken by technical experts. This included identifying priority pathways to be addressed. Preparation of a quarantine Risk Register and Draft Quarantine Design Guide for the QMS/QMP Community Workshop, with regard to the sand and aggregate pathway. The Risk Register and Design Guide were used as an example of the barriers being analysed by the Joint Venturers to address the community standards for acceptable risk. Establishment of an interactive question and answer facility on the Joint Venturers website to facilitate transparent community dialogue with the proponent. 538 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

10 Plate 12-1: Barrow Island Quarantine Community Consultation Meeting, 16th June : Quarantine Risks and Management Commitment by the Joint Venturers to continue the process of consultation with an understanding that a further Community Consultation Meeting will be convened during the period of public review of the Draft EIS/ERMP document. Review by the Joint Venturers of the timing for the release of the Draft EIS/ERMP document. The series of Barrow Island Quarantine Risk Standards Workshops provided the opportunity for the Joint Venturers to gain an understanding of community expectations of acceptable risk standards. Through this consultation process, the community stated that consequences which resulted in the establishment of an introduced species would be unacceptable. Details of the Barrow Island Quarantine Community Consultation Meetings and Workshops are provided in Technical Appendices D3 and D4. The development of community expectations for a quarantine risk standard has been a major accomplishment of the community consultation process and has provided the Joint Venturers with guidance in the development of quarantine controls to manage such risks. The community involvement process has drawn community participants and the proponents together in a manner that has allowed all parties to participate in a transparent and inclusive manner. The Joint Venturers value the relationship that has developed between the proponents and the community, and commit to an ongoing process of engagement which will seek community input into decisions that affect quarantine management of Barrow Island. Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 539

11 Best Practice Benchmarking The substantial volume of materials and high number of personnel movements associated with the proposed Gorgon Development represents a significant increase in opportunities for the introduction of non-indigenous species to Barrow Island. Preliminary estimates suggest that 1.2 million freight tonnes will land on Barrow Island, and approximately personlandings will occur during the construction phase. In light of this increased scale, the level of quarantine performance required to protect the conservation values of Barrow Island will need to set new benchmarks that extend beyond current quarantine best practice. As there was no existing description of quarantine best practice, the Joint Venturers researched quarantine programs world-wide in order to determine a quarantine benchmark for the protection of the conservation values of nature reserves. A description of this process and key outcomes is provided below. Quarantine Best Practice A procedural review of quarantine practices was undertaken for quarantine programs in Australia, New Zealand, Japan, the United States of America, and the United Kingdom. This review showed that there are procedures and features of national quarantine systems that can be regarded as best practice, but no single system involves all such elements. This is because quarantine systems depend on the specific quarantine objective and environmental values of the region to be protected. There are also a number of complicating factors including inextricable and complex linkages between quarantine and trade, and prevailing circumstances and operational constraints (further details are provided in Technical Appendix D5). Quarantine Program Objectives The primary objective of national quarantine agencies is to prevent the introduction and spread of pests and diseases into areas where they do not occur, whilst minimising any adverse effects on trade. Such objectives are usually motivated by the need to protect economic and social assets of the importing country. National quarantine authorities therefore tend to design quarantine programs which meet the dual purpose of providing an adequate level of quarantine protection, and facilitating viable international trade. Such quarantine programs therefore tend to employ practices that are the least restrictive. Quarantine programs designed to protect conservation values are less common than international cross-border quarantine programs that facilitate trade. There are four relevant examples of island quarantine programs with a conservation imperative, those being: Heard and McDonald, and Macquarie Islands respectively under the Australian Antarctic Program; Galapagos Islands, some New Zealand islands and Barrow Island. In contrast to national quarantine services, such quarantine programs typically demand substantially higher levels of protection to prevent potential introductions of non-indigenous species. Quarantine programs motivated by a conservation imperative are therefore highly restrictive on the import of goods and personnel, and provide standards of quarantine protection that typically extend well beyond those of national quarantine agencies. However, the current Barrow Island quarantine program is unique in that it is designed with a dual purpose: to protect the conservation values of the island, whilst facilitating ongoing commercial operations. Barrow Island quarantine practices are therefore generally more restrictive than those of national quarantine agencies, but also facilitate the operational requirements of the oilfield. Beyond Best Practice Quarantine Management The Joint Venturers approach to quarantine management has included a new application of risk assessment principles. Conventional import risk analyses generally have a very narrow focus on a specific species or pathway (e.g. Biosecurity Australia 2003). The approach by the Joint Venturers sets a new standard in the assessment of quarantine risk as it focuses on all possible introduction pathways and the exclusion of all non-indigenous species. Through this risk assessment process, a number of entry pathways to Barrow Island were examined and a range of potential quarantine barriers were generated, as described in Section This range of conceptual barriers has not been developed for the purpose of quarantine protection anywhere else, and in combination with established quarantine procedures, will extend quarantine measures significantly beyond current best practice. 540 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

12 Expert Advice Experts were engaged in a variety of forums including the QEP, Risk Assessment Workshops, Community Workshops, and where required, direct dialogue to address specific issues (for example, marine baseline survey strategies). A list of agencies and organisations from which experts were drawn to provide specialist advice is provided in Box The involvement of experts in these processes facilitated the following key outcomes: High-quality expert assessment of the risk of introduction of non-indigenous species via key pathways (through Risk Assessment Workshops). Development of a suite of potential quarantine barriers that in the opinion of experts would be effective in preventing the introduction of nonindigenous species. Development of a set of standards for acceptable risk. Input into the development of strategies for the detection and eradication of non-indigenous species. Development of an innovative risk assessment method to assess quarantine risks to the conservation values of Barrow Island. Development and execution of preliminary baseline marine surveys. Development of an invertebrate baseline survey strategy. The Joint Venturers commit to further engagement of experts in the development of quarantine management options for the Gorgon Development on Barrow Island. 12: Quarantine Risks and Management Box 12-5: Organisations and Agencies that Provided Specialist Quarantine Advice Government Departments & Agencies Australian Antarctic Division Australian Quarantine and Inspection Service Commonwealth Department of the Environment and Heritage Commonwealth Scientific and Industrial Research Organisation Queensland Department of Primary Industries & Fisheries Western Australian Department of Environment Western Australian Department of Conservation & Land Management Western Australian Museum Tertiary Institutions Non-Government Agencies & Community Groups Australian Wildlife Conservancy Conservation Council of Western Australia Waterbird Conservation Group Private Industry Astron Environmental Compass Group Pty Ltd Marine Management Consulting Skelton Tomkinson Technip Coflexip Oceania Pty Ltd URS Consulting Pty Ltd Toll Holdings Ltd Mermaid Marine Australia Ltd Curtin University of Technology Murdoch University University of Sydney University of Western Australia University of Tasmania And various independent consultants specialising in conservation, biosecurity, risk management Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 541

13 Standards for Acceptable Risk It is widely acknowledged that the field of risk assessment for invasive species is in its infancy and that there is a pressing need to formulate sound new methods and approaches in this field (Andersen et al. 2004). It is not possible to attempt to quantify acceptable risk for Barrow Island in a manner similar to that undertaken for individual risk in relation to, for example, hazardous industrial plants, because there are no ecological risk databases for quarantine incidents available. The risk-based approach to quarantine management developed by the Joint Venturers required the development of a standard for acceptable risk as there was no pre-existing risk-based quarantine standard for the protection of conservation values of nature reserves. This process facilitated input from the QEP, expert advice by means of Workshops, and community input via a number of Community Consultation Meetings. The standard developed by this process involves specific combinations of estimates of the likelihood of the following four parameters: introduction (of non-indigenous species to Barrow Island and surrounding waters) survival (of non-indigenous species to Barrow Island and surrounding waters) detection of non-indigenous species at Barrow Island eradication of non-indigenous species. The specific application of these community expectations of risk standards is described in greater detail in section Existing Environment Conservation Values of Barrow Island Barrow Island is a Class A Nature Reserve and forms an important natural refuge for some species of rare and threatened species of animals and plants, some of which are endemic to the island. Barrow Island is known to support 24 terrestrial species and subspecies which are not known to occur elsewhere, and another five terrestrial species with restricted distributions elsewhere. These populations, particularly the mammal populations, form a genetic reservoir that is important to biodiversity and conservation and are important as a source for controlled re-introductions of these species to other areas. The marine environment surrounding Barrow Island comprises an abundance of coral reefs, intertidal flats, and sandy beaches which provide important habitat for a variety of marine organisms including marine mammals and turtles. The island also plays a significant role in the migration patterns of many bird species. A more detailed discussion of the conservation values of the existing Barrow Island environment can be found in Chapter 8 of this Draft EIS/ERMP. The unique biodiversity of Barrow Island can be attributed to its natural isolation from the mainland and protection afforded it under its statutory status. Collaborative environmental management by oilfield operators and CALM have protected the island from incursions by non-indigenous species, some of which would be certain to disrupt the natural ecological function of the island through unnatural predation, competition, or habitat destruction. Quarantine management is therefore a key component of the Joint Venturers strategy to protect and sustain the conservation values of the island Quarantine Experience In recognition of the internationally significant conservation values of Barrow Island, quarantine management was pioneered by West Australian Petroleum Limited (WAPET) soon after oilfield operations began in the mid-1960s. WAPET consisted of Chevron, Texaco, Shell and Ampol (now ExxonMobil) which trace a direct lineage to the same Joint Venturers in the Gorgon Development. Early oilfield efforts to protect Barrow Island from the introduction of nonindigenous species reflected the limited knowledge available at that time in regard to the protection of conservation values. Since then, quarantine management of Barrow Island has continually evolved and improved, as the level of quarantine experience and knowledge of threats has continued to mature. Logistical support of oilfield operations has been substantial, with over cargo landings of both marine barges and aircraft since the 1960s. Personnel movements to the island during this period also number several hundred thousand. Despite this immense volume of movements to Barrow Island, only a limited number of quarantine incidents have been recorded. On the few occasions when non-indigenous species have reached the island, quarantine 542 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

14 management has been effective in preventing their proliferation. In most cases, such species were detected and eradicated; or in the case of some weed species, are controlled and limited to highly localised distributions Historical and Existing Presence of Non-indigenous Species There are currently no known non-indigenous species of vertebrate fauna on Barrow Island, although the proposed invertebrate baseline surveys are expected to detect species such as the cosmopolitan American cockroach and daddy long legs spider. Historically however, there have been occasions when nonindigenous species were brought to the island. An example is the black rat (Rattus rattus) which is thought to have been introduced to Barrow Island prior to the existence of any quarantine program by pearlers in the latter part of the nineteenth century. Cooperative eradication programs between the operator of the Barrow Island Joint Venture and CALM led to the complete removal of the black rat from Barrow and Middle islands by Another example involved house mice (Mus domesticus) which breached quarantine barriers via food cargoes and drilling equipment on three occasions. Coordinated operator CALM trapping and baiting efforts ensured the mice were eradicated on each occasion. Fifteen non-indigenous plant species have been detected on Barrow Island over the last 40 years, four of which were deliberately introduced and the remaining 11 classified as environmental weeds. Only six of the environmental weed species are known to persist on the island, those being Buffel grass (Cenchrus ciliaris), spiked malvastrum (Malvastrum americanun), black berry nightshade (Solanum nigram), sow thistle (Sonchus oleraceus), kapok (Aerva javanica) and whorled pigeon grass (Setaria verticillata). These are known to occur in highly localised distributions which are often characterised by episodic detections of a small number of juvenile individual plants. Such environmental weed species are the subject of an ongoing monitoring and eradication program conducted by the operator of the existing oilfield. Non-indigenous plant species were approved for deliberate introduction to Barrow Island in order to moderate the human environment in the early years of oilfield operations. These include various mainland species of eucalypts and couch grass. The distributions of deliberately introduced plant species are restricted to the area surrounding the oilfield accommodation facilities and workshops. Twenty-seven quarantine incidents have been officially recorded on Barrow Island over the 40-year history of oilfield operations. Quarantine management strategies such as detection, containment and eradication have successfully addressed these incidents. It is acknowledged that this quarantine record does not represent a complete history of all incursions that are likely to have occurred, due in part to the limited ability of the record to capture all anecdotal incidents. This is particularly true of the quarantine record captured in the earlier years of oilfield operations. Nevertheless, the quarantine record provides a reasonable indication of the effectiveness of quarantine management over this 40-year period. Development of Quarantine Management The quarantine incidents described above have provided opportunities for the oilfield operator to develop more effective approaches to quarantine management. Through an iterative process of continuous improvement, the lessons learnt from quarantine incidents have delivered new information which has been incorporated into quarantine management initiatives. This has contributed to a continually growing body of quarantine knowledge and delivered incremental improvements to the level of quarantine protection for Barrow Island. Current Barrow Island quarantine practices capture elements of the supply chain commencing at the point of supply, continuing through to checking upon receipt at logistics facilities in both Welshpool (Perth) and Dampier. These practices include quarantine provisions for air, land and sea transport by aircraft, truck and barge respectively. Quarantine restrictions extend to all personnel travelling to Barrow Island, including transit passengers that pass through the Barrow Island air terminal en route to, or from, other offshore operations. The air transport consortium which operates on the island is an active stakeholder in the Barrow Island quarantine program. 12: Quarantine Risks and Management Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 543

15 The effectiveness of the Barrow Island quarantine program to date is evidenced by a comparison to other offshore islands. Nearby islands to the north of Barrow Island, such as those in the Montebello Islands Conservation Park, and Dirk Hartog Island to the south have been, or remain infested with a range of nonindigenous species such as the black rat and feral cat, or weeds such as kapok and buffel grass. The widespread presence of such species on these islands has resulted in irreversible changes to the natural environments and ecological functions of these islands. Lessons learnt from the management of these and other islands have provided valuable insights into ways to prevent the establishment of similar undesirable species on Barrow Island. Throughout the preparation of this Draft EIS/ERMP, the Joint Venturers conducted a number of site visits for various stakeholders and technical experts to Barrow Island and the Welshpool logistics facility. These visits facilitated observation of current Barrow Island quarantine practices, and provided an opportunity for direct interaction with members of the oilfield workforce. Informal judgements of the suite of preborder, border and post-border Barrow Island quarantine practices by a number of individual stakeholders commended the high level of quarantine protection and the strong quarantine culture which was evident in the oilfield workforce (e.g. Nairn, M Personal communication) Baseline and Early Survey Strategies An understanding of the present composition and function of the ecology of Barrow Island is necessary to detect ecological changes which may occur over time. This is particularly important where the associated construction and operational activities of the proposed Gorgon Development may have direct or indirect impacts on the island s natural environment. It is therefore necessary to establish a baseline dataset of species currently present on Barrow Island and in the surrounding waters. This includes those species which are considered native to the island, and those which are thought to have been introduced to the island. A discussion of non-indigenous species present on the island is provided in Sections and for the terrestrial and marine environments respectively. To assist this process, the QEP proposed an area of quarantine protection for Barrow Island and its surrounding waters, which is illustrated in Figure This area includes the nearby islands of Boodie, Middle, Pascoe, Boomerang, Double and Prince Rock. It also accommodates the proposed marine offloading and jetty facilities associated with the Gorgon Development. Baseline surveys are intended to provide a set of critical observations or data which will be used for comparison of subsequent data captured as part of an ongoing, long-term monitoring program. Due to the different nature of the terrestrial and marine environments, different strategies have been developed for each of these environments. Barrow Island has a long history of ecological field surveys which extend back to the early 1900s. The accumulated data associated with these surveys has produced a sound level of knowledge of species presence for some biological groups. However, additional surveys are required to complement pre-existing data and determine a robust baseline of species presence. The starting point for creation of a baseline dataset for Barrow Island is the collation of species data from prior ecological surveys. This dataset will be augmented by a field program which is targeted at biological groups of special interest or those which have a limited amount of information. Such surveys will involve appropriate technical experts to ensure an adequate level of scientific rigor is incorporated into sampling methods. Some initial opportunistic field surveys have already been conducted in concert with other field activities for selected biological groups, and some initial marine surveys have been conducted already. Consistent with advice contained in the Report on Baseline Studies and Data Gaps (Technical Appendix D6), a survey to establish a baseline invertebrate dataset has been initiated on Barrow Island. This multi-phase survey commenced in April 2005 and is focussed on both native and disturbed areas to sample for a variety of invertebrate organisms including but not limited to, ants, spiders and scorpions, beetles and sucking bugs. Further field surveys are planned for late-2005, with scope for opportunistic surveys subsequent to significant rainfall events. Voucher material of animal species will be deposited in the Western Australian Museum so identifications can be checked if necessary in the future. Field surveys to address ancillary baseline data gaps are planned for execution in the second half of The extent of field surveys required for this task is 544 Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development

16 Figure 12-2: Proposed Barrow Island Quarantine Area 12: Quarantine Risks and Management Draft Environmental Impact Statement/Environmental Review and Management Programme for the Gorgon Development 545