Bushfire risk management in Victoria’s high country
Investigation of fuel and fire management in Victoria's high country using strategic cattle grazing
The Victorian community has expressed concerns regarding fuel and bushfire management on public land. Intense bushfire can pose a significant risk to human life, assets and the environment.To meet its obligations, the Victorian Government is investigating ways to effectively manage fuel and bushfire risk across the public land estate. This includes investigating fuel and bushfire risk management in Victoria’s high country using strategic cattle grazing.
The Secretary to the Department of Environment and Primary Industries (DEPI) is responsible for the management of land under the National Parks Act 1975, and must "ensure that appropriate and sufficient measures are taken to protect each national park and state park from injury by fire".
The management of fuel and bushfire risk management using grazing has been an issue of debate for many years with a general lack of peer-reviewed science to support the differing opinions.
Before cattle are introduced into the Alpine National Park for fuel and bushfire risk management purposes, the Secretary must be satisfied with the effectiveness of fuel and bushfire risk management using strategic cattle grazing, and of the non-fuel reduction impacts.
Following a review of the available scientific evidence, the Secretary decided that there was not enough evidence to form an opinion on fuel and bushfire risk management using strategic cattle grazing.
In accordance with the National Parks Act 1975, the Secretary has commissioned a research trial to help form an opinion on the effectiveness of fuel and bushfire risk management in Victoria’s high country using strategic cattle grazing.
On this page
- The research trial - Year One
- Year one: Field Survey and Assessment Report
- Development of the long term research trial
- Commonwealth Referral
- Bushfire Risk and Strategic Cattle Grazing Scientific Advisory Committee
- Frequently asked questions
- Further information
The research trial - Year One
DEPI is conducting a research trial to assess the effectiveness of managing fuel and bushfire risk using strategic cattle grazing. The non-fuel impacts of grazing will also be assessed.
In the first year of the trial, DEPI introduced 400 cattle to six sites over 26,200 hectares, or 4% of the Alpine National Park for the period 10 January to 8 April 2011.
| Research site | Area (ha) | Percent of area of Alpine National Park |
| A | 7,920 | 1.20% |
| B | 6,227 | 0.94% |
| C | 3,308 | 0.50% |
| D | 6,939 | 1.05% |
| E | 862 | 0.13% |
| F | 976 | 0.15% |
| Total | 26,231 | 3.97% |
Map of the scientific trial sites for Year One in the Alpine National Park
[PDF File - 2.4 MB]
If you would like to receive this publication in an accessible format, such as large print or black-and-white, please telephone 136 186, or through the National Relay Service (NRS) using a modem or textphone/teletypewriter (TTY) by dialling 1800 555 677, or email customer.service@dse.vic.gov.au.
Year one: Field Survey and Assessment Report
In April 2011, cattle were removed from the research sites and assessment done at each of the six sites.
The scope of the assessment was to:
1. Survey each of six research sites to detect the extent of cattle activity
2. Determine which areas in each research site cattle were present, and how cattle used those areas (e.g. transit or grazing)
3. Identify the grazing habits of cattle, including the type of vegetation eaten
4. Identify any cattle management or containment issues needing to be considered for the long term, and
5. Assess whether cattle have caused impacts against relevant matters of national environmental significance within the surveyed areas of the six research sites.
The purpose of Year One of the trial was not to assess the effectiveness of grazing for bushfire management, but to identify any logistical and/or operational issues associated with the implementation of the long term research trial.
The findings from the assessment of Year One are helping in the development of the long term research trial.
Investigation of Fuel and Bushfire Risk Management in Victoria’s High Country using Strategic Cattle Grazing – Field Survey and Assessment Year One of the Research Trial 2010/11
The executive summary gives an overview of the report.
Executive summary: Investigation of Fuel and Bushfire Risk Management in Victoria’s High Country using Strategic Cattle Grazing – Field Survey and Assessment Year One of the Research Trial 2010/11
[PDF File - 115.0 KB]
Download the full report.
Investigation of Fuel and Bushfire Risk Management in Victoria’s High Country using Strategic Cattle Grazing – Field Survey and Assessment Year One of the Research Trial 2010/11
[PDF File - 6.7 MB]
Accessible version of the report
Development of the long term research trial
The Department is currently working on development of the long term research trial to assess the effectiveness of fuel and bushfire risk management in Victoria’s high country using strategic cattle grazing. This includes development of a Science Plan and Environment Management Plan. A map identifying Victoria’s high country and the location of the six research sites and four contingency sites identified for the research trial is below.
If you would like to receive these publications in an accessible format, such as large print or black-and-white, please telephone 136 186, or through the National Relay Service (NRS) using a modem or textphone/teletypewriter (TTY) by dialling 1800 555 677, or email customer.service@dse.vic.gov.au.
Map of proposed sites for long term research trial
[PDF File - 1.7 MB]
Several reports were commissioned to assist with the development of the Science Plan and/or Environment Management Plan and are now available below.
National Heritage Listing Desktop Assessment
Main Report - Desktop National Heritage Listing Assessment
[PDF File - 1.0 MB]
Map 1 - Desktop National Heritage Listing Assessment
[PDF File - 986.3 KB]
Map 2 - Desktop National Heritage Listing Assessment
[PDF File - 1.9 MB]
Fauna, and Flora Desktop Assessment: Matters of National Environmental Significance
Main Report - Fauna and Flora Desktop Assessment MNES
[PDF File - 1.2 MB]
Figure 1 - Fauna and Flora Desktop Assessment MNES
[PDF File - 986.3 KB]
Figure 2 - Fauna and Flora Desktop Assessment MNES
[PDF File - 1.5 MB]
Figure 3 - Fauna and Flora Desktop Assessment MNES
[PDF File - 1.5 MB]
Figure 4 - Fauna and Flora Desktop Assessment MNES
[PDF File - 1.5 MB]
Commonwealth Referral
The Department has referred activities associated with the long term research trial to the Commonwealth Minister for Sustainability, Environment, Water, Population and Communities (SEWPaC) for his consideration under the Environment Protection and Biodiversity Conservation Act 1999. A copy of the referral and all attachments included in the referral documentation are attached below.
On 31 January 2012, the Commonwealth Minister for Sustainability, Environment, Water, Population and Communities announced his decision that the research trial was an unacceptable action based on impacts to national heritage values of the Australian Alps National Parks and Reserves (including the Alpine National Park).
For more information on that decision please refer to the SEWPaC website.
Referral of activities associated with research trial
Referral of proposed action
[PDF File - 1.7 MB]
Attachments included with the referral documentation
If you would like to receive these publications in an accessible format, such as large print or black-and-white, please telephone 136 186, or through the National Relay Service (NRS) using a modem or textphone/teletypewriter (TTY) by dialling 1800 555 677, or email customer.service@dse.vic.gov.au.
Attachment 1 - Research Trial Sites
[PDF File - 1.8 MB]
Attachment 2 - Research Trial Lat and Longs for each site
[PDF File - 20.7 KB]
Attachment 3 - Research Trial Lot numbers for each site
[PDF File - 17.7 KB]
Attachment 5 part a - Research Trial - Desktop Flora and Fauna MNES Report
[PDF File - 1.2 MB]
Attachment 7 part a - Research Trial - MNES Risk Assessment
[PDF File - 787.1 KB]
Attachment 7 part b - Research Trial - MNES Risk Assessment
[PDF File - 195.1 KB]
Attachment 8 - Research Trial Slope Elevation and Aspect for each site
[PDF File - 32.9 KB]
Attachment 9 - Research Trial Site A EPBC listed species
[PDF File - 699.3 KB]
Attachment 10 - Research Trial Site B EPBC listed species
[PDF File - 1.1 MB]
Attachment 11 - Research Trial Site C EPBC listed species
[PDF File - 1004.2 KB]
Attachment 12 - Research Trial Site D EPBC listed species
[PDF File - 1.2 MB]
Attachment 13 - Research Trial Site E EPBC listed species
[PDF File - 704.7 KB]
Attachment 14 - Research Trial Site F EPBC listed species
[PDF File - 546.0 KB]
Attachment 15 - Research Trial Contingency Site C1 EPBC listed species
[PDF File - 445.4 KB]
Attachment 16 - Research Trial Contingency Site C2 EPBC listed species
[PDF File - 506.8 KB]
Attachment 17 - Research Trial Contingency Site C3 EPBC listed species
[PDF File - 378.0 KB]
Attachment 18 - Research Trial Contingency Site C4 EPBC listed species
[PDF File - 1.0 MB]
Bushfire Risk and Strategic Cattle Grazing Scientific Advisory Committee
The Secretary has called for suitably qualified scientists to serve on the Bushfire Risk and Strategic Cattle Grazing Scientific Advisory Committee.
The purpose of the committee is to provide independent, competent and timely scientific evaluation of research proposals, research plans, monitoring plans, sampling protocols, data analysis, interpretation of results, publications, reports and other products of the Victorian Government’s scientific research trial investigating the use of strategic cattle grazing as a tool to reduce bushfire risk in Victoria’s high country, including the Alpine National Park. The committee will also provide independent review of the overall progress of the research program as required by the Secretary.
Committee members must have demonstrated and internationally recognised expertise relevant to the research trial and be in a position to independently and objectively evaluate the program.
Membership of this Committee is currently being finalised.
The Terms of Reference for the Committee are provided below.
Frequently asked questions
What is the research trial about?Why is a research trial being conducted?
What is the objective of the research trial?
Why is the research trial being conducted in the Alpine National Park?
Isn’t it proven that ‘grazing doesn’t reduce blazing’?
Who is conducting the trial?
Will cattle graziers pay or be paid to participate in the trial?
Will the results of the research be released to the public?
Will the results of the research be peer-reviewed?
Have cultural heritage sites been identified and protected?
How are natural values and threatened species being protected during the trial?
How are cattle being contained so they don’t have a significant impact on natural values?
Has the Australian Government been advised of the trial?
What is the research trial about?
The trial is assessing the effectiveness of fuel load and bushfire risk management in Victoria's high country using strategic cattle grazing.
Why is a research trial being conducted?
There is a lack of research looking at the direct effects of strategic grazing on fuel load and structure in all alpine and subalpine ecosystems. Past research has been mostly undertaken on related topics, with inference drawn on the impact of strategic grazing on fire behaviour.
There is also a lack of evidence on the interaction between fuel load and structure and fire behaviour in these ecosystems. The measurement of fuel loads has also been inconsistent, with vegetation cover and composition being used as a measure of fuel load. This does not take into account other factors identified to be crucial to fuel load, such as surface fuel and the moisture content.
Before cattle are introduced into the park for fuel reduction purposes, the Department of Environment and Primary Industries’ Secretary must be satisfied with the effectiveness of cattle grazing as a fuel reduction measure, and of its non-fuel reduction impacts.
Following a review of the current scientific evidence, the Secretary has determined that the available evidence does not allow for an opinion to be formed on the effectiveness of fuel and fire management using strategic cattle grazing. Important knowledge gaps include the coverage (geographic area and vegetation type) and quality of current scientific evidence.
In recognition of these knowledge gaps, the Secretary has set up a targeted scientific research program, which will allow the Secretary to form an opinion on the use of strategic cattle grazing to effectively manage fuel and the risk of fire as a component of the responsible management of the Alpine National Park.
What is the objective of the research trial?
The Secretary is responsible for the management of land under the National Parks Act 1975, and must be satisfied that strategic cattle grazing is an effective fuel reduction and bushfire management measure.
Following a review of the available scientific evidence, the Secretary decided that there was not enough evidence to form an opinion on the effectiveness of fuel and fire management using strategic cattle grazing, so has commissioned scientific research to help form an opinion on the effectiveness fuel and bushfire risk management in Victoria’s high country using strategic cattle grazing. The research will also assess the non-fuel impacts of grazing.
For the trial to meet its objective it will assess the impact of grazing on fuel load and structure and on the ecological condition of the park.
Why is the research trial being conducted in the Alpine National Park?
The community has expressed concerns regarding fuel and bushfire management on public land. Intense bushfire can pose a significant risk to human life and the environment. To meet its obligations, the government is investigating ways to effectively manage fuel load and fire risk across the public land estate, including the Alpine National Park.
In addition, the Alpine National Park was grazed for over 100 years prior to the cessation of grazing in 2005. The absence of grazing from an ecosystem that has largely adapted to cattle grazing provides a unique ability to collect scientific data on the fuel and non-fuel impacts of strategic cattle grazing to reduce fire risk.
Before cattle are introduced into the Park for fuel reduction purposes, the Secretary must be satisfied with the effectiveness of cattle grazing as a fuel reduction measure, including non-fuel reduction impacts. So a trial is being conducted to gather that information and evidence. Isn’t it proven that ‘grazing doesn’t reduce blazing’?
No. The effective management of fuel and fire using grazing has been an issue of debate for many years with a general lack of peer-reviewed science to support the differing opinions.
In its 2005 report of the investigation into the future of cattle grazing in the Alpine National Park, the Alpine Grazing Taskforce stated that “There has been only one broad-scale, systematic and statistically based investigation of patterns of burning across treeless areas of the Bogong High Plains following the 2003 fires”.
While this study found that there was no statistically significant lowering of fire incidence or severity at a landscape level because of grazing, it only focused on a small part of the Alpine National Park – grasslands, heathlands and wetlands on the Bogong High Plains region – due to practical limitations. There were also important gaps in this study including the following key variables that are known to influence fire behaviour – fuel load and structure, topography and weather.
This scientific research trial will focus on a range of ecosystems in the Alpine National Park, including forested areas, and will build upon the existing body of research by concentrating on areas where scientific evidence is lacking.
Who is conducting the trial?
The trial is being conducted by DEPI. DEPI is responsible for approval of research design and implementation. To assist, the Secretary to will procure research services from suitably qualified scientists.
Fuel reduction services will be provided by local graziers.
Will cattle graziers pay or be paid to participate in the trial?
No. The cattle graziers will neither pay or be paid to provide fuel reduction services to the Secretary.
Yes. The results of the trial will be released to the public, with progress reports made available throughout the duration of the research.
Will the results of the research be peer-reviewed?
Yes. Quality assurance for the research will be provided by a Scientific Advisory Committee selected following an international expression of interest process. The Committee will provide peer review of research proposals, research plans, monitoring plans, sampling protocols, data analysis, interpretation of results, publications, reports, and other products of the research program as required by the Secretary.
Have cultural heritage sites been identified and protected?
The Department is working with Aboriginal Affairs Victoria to identify and protect indigenous cultural heritage sites known to be within the research trial areas. An adaptive management program will also be applied.
DEPI is consulting with traditional owners as part of the design of the long term research program.
How are natural values and threatened species being protected during the trial?
Natural values are being protected during the conduct of the trial using an environmental management framework based on rigorous site selection process (including assessment against the Australian Governments’ significant impact guidelines), a comprehensive risk assessment and environment management plan, and an adaptive management approach.
Grazing has generally been found to change the structure and composition of plant communities in alpine and subalpine ecosystems through selective grazing and physical changes.
Fire, including fuel reduction burning, can also alter the age, structure/habitat and species diversity of ecosystems. But ecological impacts are not just about the effects of a single fire, but of the history of fires.
It is important that measures taken to reduce the risk of fire – be it grazing, fuel reduction burning or a combination of the two – is informed by good science.
A key question that will be answered by the science trial is whether the risk of fire in Victoria’s high country is reduced using strategic cattle grazing and whether the impact on the environment is balanced by the results.
Appropriate design principles, including site selection, will avoid and/or minimise significant impacts from the scientific trial on important natural values and threatened species and communities.
In addition to site selection, to ensure compliance with relevant legislation the trial will be governed by an adaptive management approach. To effect the approach, the risk of significant impact on listed values will also be managed through:
- An environment management plan, including a risk assessment
- Monitoring by field staff – targeted and ad hoc
- Application of an adaptive management decision framework to consider issues of concern identified during implementation of the research trial
How are cattle being contained so they don’t have a significant impact on natural values?
Fencing and natural barriers such as rock faces will be used to control the movement of cattle within sites to avoid significant impacts. Rangers will also be on site to monitor the location of the cattle.
Regular monitoring will be done by Parks Victoria rangers to ensure that cattle are contained and failure to do so may result in prosecution under National Parks (Park) Regulations 2003 and the termination of the contracts.
Has the Australian Government been advised of the trial?
DEPI wrote to the Australian Department of Sustainability, Environment, Water, Population and Communities advising of the trial and has met with senior representatives to provide a full briefing on the research trial.
In April 2011, DEPI wrote to the Commonwealth Minister for Sustainability, Environment, Water, Population and Communities advising that the long term research trial will be referred for his consideration under the Environment Protection and Biodiversity Conservation Act 1999. This referral has now occurred.