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EDO NSW Fact Sheet 6.1 - Threatened Species and Ecological Communities
Print this factsheet 6.1 Threatened species and ecological communities 6.1.1 Overview Key to terms used in this
Fact Sheet Commonwealth Environment Department means the
Commonwealth Department of Sustainability, Environment, Water, Population
and Communities DECCW means the NSW Department of Environment,
Climate Change and Water Director-General means the Director-General of
DECCW 4
EPA Act means the Environmental Planning and
Assessment Act 1979 EPI means an environmental planning instrument,
which is a local environmental plan or a state environmental planning
policy EPBC Act means the Environment Protection
and Biodiversity Conservation Act 1999 (Cth) Environment Minister means the NSW Minister for
Climate Change and the Environment LEP means a local environmental plan NPW Act means the National Parks and Wildlife
Act 1974 NPWS means the NSW National Parks & Wildlife
Service, now called the Parks and Wildlife Group within DECCW SEPP means a State Environmental Planning Policy SIS means a species impact statement TSC Act means the Threatened Species Conservation
Act 1995 Threatened species offences means those offences
regarding threatened species, populations and ecological communities
set out in Part 8A of the NPW Act.
for Conservation of Nature and Natural Resources Red List of
Threatened Species, Australia now has the highest rate of species extinction
of any developed nation. Almost one in five mammal species are facing extinction
and there are over 800 plants and animals which are listed as threatened. NSW and the Commonwealth both have laws protecting threatened species. 6.1.1.1 NSW threatened species laws In NSW, threatened species are protected under the following three Acts
which operate in conjunction with each other: The Threatened Species Conservation Act 1995 deals
with the listing of species, the declaration of critical habitat, recovery
plans, threat abatement plans, licencing, biodiversity certification and
biobanking; The National Parks and Wildlife Act 1974 contains
additional licencing provisions, and provisions for criminal offences;
and The Environmental Planning and Assessment Act 1979 imposes
obligations on developers and consent authorities to assess and consider
the impacts of proposed development on threatened species during the
development assessment process (e.g. by requiring a species impact statement
in some circumstances). Threatened fish (both saltwater and freshwater) and their habitat, and threatened
marine vegetation, are protected under the Fisheries Management Act 1994. There are many native species of flora (plants) and fauna (animals) which,
although not threatened, still have some degree of legal protection. These
are protected under the National Parks and Wildlife Act 1974. For
more information, see Fact sheet 6.2 on Protecting native animals and plants. Habitat loss through land clearing and development is one of the key threatening
processes leading to loss of biodiversity in NSW. Land clearing in general
is regulated under the Native Vegetation Act 2003 (see
Fact sheet 5.3). 6.1.1.2 Which government department is responsible? The Department of Environment, Climate Change and Water, is
responsible for protecting threatened species in NSW. DECCW administers
both the Threatened Species Conservation Act and the National Parks
and Wildlife Act. If you are concerned about an alleged breach of the
NSW threatened species legislation, you can report the incident to DECCW
by phoning 131 555 or by email to info@environment.nsw.gov.au.
You should receive an incident report number and DECCW should follow the
matter up. The Environment Minister is responsible for both of these Acts. Although
the Planning Minister administers the Environmental Planning and Assessment
Act, the Environment Minister has an important concurrence rolefor
all developments which are likely to significantly affect threatened species. 6.1.1.3 Commonwealth threatened species law Species and ecological communities which are threatened on a national level
are protected under the Commonwealth Environment Protection and Biodiversity
Conservation Act (EPBC Act). The EPBC Act protects: Fauna and flora on land controlled or owned by the Commonwealth, 1
Fauna and flora that may be harmed by the activities of
the Commonwealth or a Commonwealth agency, 2 and Nationally listed threatened species or communities which
might be significantly impacted by an activity or development. 3
Remember that a threatened species or ecological community may be protected
under both NSW law and Commonwealth law at the same time if the species
is considered to be threatened nationally. For example, the Grey-headed
Flying-fox is listed as a vulnerable species under the Threatened
Species Conservation Act (NSW) and is also listed as a vulnerable
species under the EPBC Act. If you are concerned about a particular species, you should check both
the threatened species databases under the Threatened
Species Conservation Act (NSW) and
the EPBC
Act	If you are concerned about an alleged breach of the Commonwealth threatened
species legislation, you can report
the incident	to the Commonwealth Environment Department by calling the Compliance and
Enforcement Branch on 1800 110 395 or by email to compliance@environment.gov.au. This Fact sheet does not deal with Commonwealth threatened species legislation.
See instead Fact sheet 3.3 on Commonwealth threatened species law. 6.1.1.4 Useful web links NSW
Department of Environment, Climate Change and Water - nature
conservation Nature Conservation Council World Wide Fund for Nature 6.1.1.5 Useful legal texts Environmental & Planning Law in New South Wales ,
by Lyster, Lipman, Franklin, Wiffen and Pearson, The Federation Press (2007), Chapter 8 Conserving Biodiversity, pp 318 - 339. The Environmental Law Handbook, Farrier and Stein, eds, 4 th ed, Redfern Legal Centre Publishing, (2006), Chapter 11, Biodiversity conservation, pp 420 - 432. 6.1.2 Listing threatened species The Threatened Species Conservation Act 1995 is the main legislation protecting threatened species in NSW. The Act and the Threatened Species Conservation Regulation 2002 contain a comprehensive framework for listing threatened species. 6.1.2.1 Eligibility for listing In NSW the following may be listed under the Threatened Species Conservation Act : Individual species, Populations, and Ecological communities. They may be listed once they reach a particular level of endangerment (e.g. vulnerable, endangered, critically endangered). The listings are collectively known as "threatened species, populations and ecological communities" and are often simply referred to as "threatened species". 6.1.2.1.1 Individual species Individual species may be listed as: Presumed extinct not recorded in its known or expected habitat within its lifecycle 5
Critically endangered facing an extremely high risk of extinction in NSW in the immediate future 6
Endangered facing a very high risk of extinction in the near future 7
Vulnerable facing a high risk of extinction in the medium-term future 8
6.1.2.1.2 Populations Individual populations, or pockets, of species may be listed as an "endangered
population". 9
A population is eligible to be listed if it is facing a very high risk of
extinction in New South Wales in the near future. 10 The
population cannot be listed if the species is already listed as endangered,
critically endangered or presumed extinct. 11Note:
individual populations cannot be listed under the EPBC Act. Examples of endangered populations include: 12
the Emu population in the NSW North Coast bioregion and
the Port Stephens area, the Gang-gang Cockatoo population in the Hornsby and Ku-ring-gai
areas, the Little Penguin in the Manly Point Area, the Long-nosed Bandicoot at North Head, Koalas at Hawks Nest and Tea Gardens, and Koalas at Pittwater Local Government Area. 6.1.2.1.3 Ecological communities Ecological communities may be listed as: Critically endangered ecological community Facing an extremely high risk of extinction in the immediate
Endangered ecological community Facing a very high risk of extinction in the near future, 14 or Vulnerable ecological community Facing a high risk of extinction in the medium-term. 15
6.1.2.2 Procedure for listing 6.1.2.2.1 Who may initiate action for listing? Any person may nominate a species, population or ecological community for
listing or omission under the TSC Act. 16The
nomination must follow the process set out in the Act. 17 The
Scientific Committee may also list a species, population or ecological community
on its own initiative. If you wish to nominate a species, you will need detailed evidence to support
your nomination. There are some conservation groups who are experienced in
preparing nominations for threatened species. If you think a particular species,
population or ecological community should be listed, and you want help, you
could contact: Humane Society International Website: www.hsi.org.au Phone: (02) 9973 1728 or Toll free 1800 333 737 Nature Conservation Council NSW Website: www.nccnsw.org.au Phone: (02) 9279 2466 6.1.2.2.2 Scientific Committee The Scientific Committee, established under the Threatened Species Conservation
Act , is responsible for determining whether a particular species,
population or ecological community is to be included on or omitted from
the list of threatened species. 18
The process is as follows: 19
After the Committee has considered a proposal, it must make
a preliminary determination as to whether or not the proposal should
be supported, In a case involving a nomination, the Committee must then
make a final determination within 6 months of calling for submissions on
its preliminary determination, Before making a final determination, the Scientific Committee
must refer the proposed nomination to the Environment Minister. The
Environment Minister may only refer the proposed determination back to
the Committee for further consideration on scientific grounds. Final determinations are published in the NSW Government Gazette. The validity
of a final determination may only be challenged in the Land and Environment
Court within 6 months of the determination appearing in the Gazette. 20
6.1.2.2.3 Emergency listings The Scientific Committee may list a species on an emergency basis by giving
it a provisional listing 21. A species may be provisionally listed as endangered or critically endangered
if, although not previously known to have existed in New South Wales , it
is believed on current knowledge to be indigenous to New South Wales , or
if it was presumed extinct but has been rediscovered. 22Anyone
may nominate a species to be listed provisionally. 23
What are the implications of listing? Once a species, population or ecological community has been listed, it may
trigger the following actions: the Director-General may prepare a recovery plan for it
(see para. 6.1.3.1 below); the NPWS must identify critical habitat if the species,
population or ecological community is endangered or critically endangered,
which may then be declared as such by the Environment Minister (see
para 6.1.2.2.4 below); A person who harms (animals) or picks (plants) the threatened
species will commit an offence unless they have a licence or other
form or authorisation (see para 6.1.4 below); Developments which are likely to significantly affect the
threatened species or its habitat will require a species impact statement
(see para 6.1.5.2 below). 6.1.2.2.4 Critical habitat Once a species, population or ecological community is listed as endangered
or critically endangered, the NPWS must take steps to identify the habitat
that is critical to its survival. The Environment Minister is responsible for declaring critical habitat,
on advice from the Director-General. 24 A
declaration of critical habitat and a map showing its location must be published
in the NSW Government Gazette and copies given to all affected landholders,
public authorities and mortgagees. 25
The Director-General must keep a public register of all critical habitat. 26
If an area of land is declared as critical habitat, it means that: The Environment Minister may not confer biodiversity certification
over those areas of land in an LEP or SEPP; Planning authorities (such as local councils) must have
regard to the register of critical habitat when deciding whether to grant
development consent; 27
Public authorities must consider the habitat when using
land that it owns or controls; 28
An application for a licence to carry out an activity on
the land must be accompanied by a species impact statement; 29 and A development application relating to that land must be
accompanied by a species impact statement. 30
Critical habitat declarations are recorded on DECCW's
critical habitat register.
6.1.2.3 Threatened fish and marine vegetation In NSW, the protection of marine species is dealt with outside the general
threatened species laws. Threatened species of fresh and saltwater fish and
marine vegetation are protected under the Fisheries Management Act 1994. The protection of threatened marine species and marine vegetation is shared
between the Industry and Investment NSW and DECCW. The Minister for Primary
Industries is responsible for administering most parts of the Fisheries
Management Act 1994. 6.1.2.3.1 How are fish listed as threatened? The Fisheries Scientific Committee, established under the Fisheries
Management Act 1994, is responsible for determining which fish species,
populations, ecological communities or threatening processes should be
added to the list. 31 The Minister
then either accepts the nomination or refers it back to the Committee for
scientific reasons. 32Any person may
nominate a new species for listing. 33The
categories of threatened species, populations and ecological communities
mirror those under the Threatened Species Conservation Act. Habitat that is critical to the survival of endangered or critically endangered
marine species may be declared as critical habitat. 34The Fisheries
Management Act establishes a number of offences, including harming
any listed marine species or damaging its habitat. 35
6.1.2.3.2 Threatened fish and development The provisions of the Environmental Planning and Assessment Act regarding
the need for species impact statements apply to the critical habitat of fish
or marine vegetation and threatened species, populations and ecological communities
of fish and marine vegetation in the same way as they do to ground-dwelling
threatened species. 36
Thus, a development application which is likely to significantly affect
a threatened species of fish will require a species impact statement to accompany
the development application. Instead of requiring the concurrence of the
Environment Minister, the concurrence of the Minister for Primary Industries
will be required. 37
6.1.2.3.3 Key threatening processes for fish Processes which threaten the survival of species may be listed under the Threatened
Species Conservation Act (see para 3.2 below). 38
Over 30 key threatening processes are listed, most of which relate to land-based
activities, although there are two which relate specifically to marine species.
These are: Death or injury to marine species following capture in shark
control programs on ocean beaches, and Entanglement in or ingestion of human debris in marine and
estuarine environments. 6.1.2.4 Licences DECCW does not issue licences concerning threatened fish species and marine
vegetation. These are issued by Industry and Investment NSW. Case Study: Man fined for killing endangered grey nurse shark A recreational fisher from Lake Munmorah who killed
an endangered grey nurse shark	was in fined $2000 for the offence. The man pleaded guilty in Forster
Local Court for taking the 1.7m long female shark off Hastings Point in
June 2006. Grey nurse sharks were listed as an endangered species in 2001 under the Fisheries
Management Act 1994, after first being declared threatened in 1984. The fine was disappointingly low. As the proceedings were dealt with in
the Local Court , the maximum fine available was $10,000. If proceedings
had been commenced in the Supreme Court or the Land and Environment Court,
a much larger penalty would have been possible (that is, $220,000 or two
years imprisonment). 39
6.1.3 Long-term planning tools to protect threatened species 6.1.3.1 Recovery plans Once a species is listed as threatened, the Director-General may prepare
a recovery plan for it, although this is not mandatory. Recovery plans may
be prepared for all categories of threatened species, populations and ecological
communities, other than those presumed extinct. 40
A recovery plan must identify critical habitat for the threatened species,
identify the processes which are threatening the species (eg land clearing,
predation by foxes), and state what can be done to ensure the recovery of
the species. 41
Ministers and public authorities (local councils) must take any action available
to them to implement a recovery plan and must not make decisions that are
inconsistent with a recovery plan. 42Public
authorities who intend to depart from a recovery plan must notify the Director-General. 43
There are over 80 recovery
plans for species listed as "endangered", and
about 16 for species listed as "vulnerable". 6.1.3.2 Key threatening processes Key threatening processes may
be listed by the Scientific Committee. 44A
process can be listed if it could adversely affect, or cause a species, population
or ecological community which is not presently threatened to become threatened. 45Any
person may nominate a threatening process for inclusion on the list. 46
Once a key threatening process is listed, it triggers the need for a threat
abatement plan. 47
There are over 30 key threatening process listed. These include things such
as: long wall mining, alteration to the natural flows of rivers and wetlands, climate change, bush rock removal, clearing native vegetation, loss of hollow-bearing trees, and removal of dead wood and dead trees. 6.1.3.3 Threat abatement plans The listing of a key threatening process triggers the need for the Director-General
to prepare a threat abatement plan (although this is not mandatory). 48 The
plan should set out how the Director-General proposes to reduce or eliminate
the threat, identify the people or public authorities responsible for implementing
the plan, and give a proposed timetable. 49
There are presently 3 threat
abatement plans	in NSW. Ministers and public authorities must take any action available to them
to implement the plan. 50Consent authorities
must have regard to threat abatement plans when considering a development
application (under Part 4 of the EPA Act), or when a determining authority
is considering an approval (under Part 5 of the EPA Act). 6.1.3.4 NSW Threatened Species Priority Action Statement The Director-General is required to prepare and adopt a Threatened
Species Priorities Action Statement	(PAS). 51 In accordance with this obligation,
a Priorities Action Statement has been developed which outlines strategies
to promote the recovery of each threatened species, population and ecological
community and manage key threatening processes. The PAS identifies which recovery and threat abatement plans DECCW will
prepare. The PAS must be reviewed every three years. 52
6.1.4 Licences to harm or pick threatened species As a general rule, actions that are likely to result in the harming or picking
of threatened species must either be licenced, have development consent or
have biodiversity certification. Licences regarding threatened species are issued under the TSC Act. 53It
is also possible to obtain a general licence under the National Parks
and Wildlife Act 54 to harm or
pick threatened species, but such a licence may only be issued in strict
circumstances for the welfare of an animal or if there is a threat to life
or property. 55
6.1.4.1 Application process Applications for licences under the TSC Act are made to the Director-General
of DECCW, who is responsible for issuing licences. 56 If
the activity to be licenced will take place on land that is critical habitat,
the application must be accompanied by a species impact statement. 57If
a species impact statement is not compulsory, the Director-General may decide
that one is necessary if the action is likely to significantly affect threatened
species. 58
6.1.4.2 Appeals An applicant for a licence may appeal to the Land and Environment Court
against the refusal, conditions, variation or cancellation of a licence. 59 A
person may also appeal against a grant of the licence if the licence was
accompanied by a SIS and the person made a written submission while the application
was on public exhibition. 60
Appeals must be brought within 28 days. 61The
licence cannot be used until the appeal period has expired, or if an appeal
has been lodged, until the appeal is finally determined. 62
6.1.4.3 Public register The Director-General must keep a public
register	of all licence applications and licences. 63
6.1.5 Threatened species and development NSW laws do not protect threatened species absolutely. Rather, the laws
set up administrative procedures (such as requiring species impact statements)
to guide decision-making where threatened species are concerned. For example, under the Environmental Planning and Assessment Act 1979 (the
main legislation controlling development in NSW), a consent authority may
grant development consent which will adversely affect threatened species. There are three ways in which this can happen: The development takes place under an environmental planning
instrument (eg a local environment plan) which has biodiversity certification; The developer carries out a species impact statement which
accompanies the development application; or The developer participates in the BioBanking Scheme. Each of these options is exclusive of the other. For example, if a development
it is proceeding under the BioBanking Scheme, a species impact statement
will not be needed. Cumberland Plain Woodland pushed closer to extinction by clearing
A decision by Penrith City Council to approve the clearing of 300 hectares
of vegetation from the Australian Defence Industries site (ADI site) near
St Marys in western Sydney has pushed one of the largest fragments of
the threatened Cumberland
Plain Woodland further towards extinction. Only one month before the council granted the approval, the NSW Scientific
Committee made a preliminary decision upgrading Cumberland Plain Woodland's
status from endangered to critically endangered. Cumberland Plain Woodland provides crucial habitat for a wide range of bird
and mammal species and it is only found in the Hawkesbury/Nepean and Sydney
Metro catchment areas. The ADI site forms part of an important conservation
corridor in Sydney's west. The primary threat facing the Woodland is currently
clearing for urban or rural development and the subsequent impacts of
6.1.5.1 Biodiversity certification The TSC Act allows for the biodiversity
certification	of specified land. 64
There are two types of biodiversity certification: Certification of environmental planning instruments (LEPs
and SEPPs) (described below) 65, and Certification of the Native Vegetation Reform Package (see
Fact Sheet 5.3). 66
6.1.5.1.1 Environment Minister confers certification The purpose of permitting LEPs to be certified is to allow local councils
to engage in strategic planning, thus providing greater certainty for development
in areas where there are threatened species. This is particularly relevant
in urban and coastal areas where there are significant development pressures
on threatened species habitat. Under the biodiversity certification provisions, the Environment Minister
may confer biodiversity certification on a LEP or a SEPP if the Minister
is satisfied that the EPI "will lead to the overall improvement or maintenance
of biodiversity values", such as where a LEP retains and protects areas of
habitat for threatened species. 67
Certification may be limited. For example, it may be expressed to only apply
to certain threatened species, or to certain types of development. 68Certification
cannot be granted over land which is declared as critical habitat. The certification
remains in force for 10 years, unless otherwise specified. 69 The
Minister must review the certification if an EPI is reviewed or the land
is rezoned. 70
The Environment Minister must have regard to certain factors in deciding
whether to grant biodiversity certification, including the principles of
ecologically sustainable development, and any conservation outcomes (such
as an agreement to transfer land to the public parks system). 71
An EPI cannot be biodiversity certified unless it has been publicly exhibited
and the Minister has been given all public submissions. 72 DECCW
is currently preparing Guidelines for local councils to assist them in
preparing LEPs for certification. DECCW
keeps a list of EPIs that have received biodiversity certification. 6.1.5.1.2 What is the effect of biodiversity certification? The effect of biodiversity certification is that developments that fit within
the certified area will not need to have a species impact statement. Under
the biodiversity certification provisions, any development for which development
consent is required (under Part 4 of the EPA Act), or an activity (under
Part 5 of the EPA Act), is automatically assumed not to have a significant
impact on threatened species, populations or ecological communities, thereby
avoiding the need for a species impact statement. 73
However, a licence to kill or harm threatened species may still be required
if a development does not need development consent, but will still affect
threatened species or their habitat. 6.1.5.1.3 Public notification and register Within 21 days of granting biodiversity certification to an EPI, the Environment
Minister must give notice to the Planning Minister, to the public on the
DECCW website, and to each local council affected. 74The
Environment Minister must keep a public
register	recording the granting, extension, suspension or revocation of all biodiversity
certifications. 75
6.1.5.2 Species impact statements Developments which are proposed for land which is critical habitat, or which
is likely to significantly affect threatened species, populations or ecological
communities, must have a species impact statement (SIS). This provision does
not apply if the applicable EPI has biodiversity certification, or if a BioBanking
statement has been issued for the development. The procedure for these types of developments is as follows: The developer must submit a SIS with their development application
prepared in accordance with the Threatened Species Conservation Act ; 76
In deciding whether to grant consent, a consent authority
must take into account the likely impacts of the development on threatened
species and their habitat; 77
Development consent cannot be granted without the concurrence
of the Director-General of DECCW or, if a Minister is the consent
authority, unless the Minister has consulted with the Environment Minister. 78
Planning authorities must have regard to the register of critical habitat
when deciding whether to grant consent 79 and
to recovery plans 80, threat abatement
plans and key threatening processes. 81
6.1.5.2.1 7-part test In deciding whether there is likely to be a significant effect on threatened
species, populations or ecological communities, the consent authority must
take into account the 7-part test set out in the EPA Act. 82These
factors include whether a viable local population of the species is likely
to be placed at risk of extinction, whether habitat will be removed or modified,
and whether habitat is likely to become fragmented or isolated from other
areas. 6.1.5.2.2 Concurrence of Environment Minister In deciding whether or not to grant concurrence, the Director-General (or
the Minister) must consider a range of listed factors, including the principles
of ecologically sustainable development. 83 The
Environment Minister may either grant concurrence subject to conditions,
or refuse concurrence. 84 The conditions
of concurrence must be included in the development consent. 85
By agreement with the developer, the Director-General may make concurrence
conditional on the developer taking certain voluntary conservation actions
regarding threatened species, and those conditions become a binding part
of the development consent. 86For example,
the Director-General may require the developer to dedicate land to be used
as a national park or nature reserve, enter into a conservation agreement,
restore threatened species habitat, or donate money to protect threatened
species. 87
6.1.5.3 BioBanking statements In 2008, the NSW Government introduced a new scheme to protect threatened
species known as the BioBanking Scheme. 6.1.5.3.1 How does the BioBanking Scheme work? Under the Scheme, an owner of land containing threatened species or habitat
for threatened species may have their land approved as a biobank site and
can enter into a biobanking agreement with the Environment Minister for which
biodiversity credits are issued in return for the landowner agreeing to protect
threatened vegetation and threatened species. 88
A developer can apply to the Director-General for a biobanking statement
which will state how many biodiversity credits, and what type, the developer
must buy (and retire) in order to offset the impacts of their development
on threatened species. 89A biobanking
statement can be obtained for any development that requires development consent
under Part 4 or Part 3A of the EPA Act, and for any Part 5 activity. 90
Participation in the Scheme is voluntary. A developer can choose to obtain
a biobanking statement in order to avoid the need to carry out a species
impact statement. 91 The conditions
of a biobanking statement must be incorporated into the conditions of the
development consent. 92 A biobanking
statement expires after two years unless it is acted upon. 93The
Director-General must keep a public register of all biobanking statements. 94
6.1.5.3.2 BioBanking Assessment Methodology The Minister has published a very detailed methodology setting out how the
likely impacts of a development are to be assessed, and how the credits required
to be purchased are to be calculated, and how the offset rules will work. 6.1.5.3.3 More information on BioBanking For more information on biobanking see: Fact Sheet 5.3 on BioBanking, Fact Sheet 6.4 on Conserving private land, and DECCW
website on BioBanking Offences and defences. 6.1.6 Offences
The criminal offences relating to threatened species, endangered populations
and endangered ecological communities are set out in the National Parks
and Wildlife Act, 95 not the Threatened
Species Conservation Act. Although these offences may be enforced through either civil proceedings,
or criminal proceedings, most breaches are prosecuted as criminal matters. DECCW is responsible for bringing criminal prosecutions. 96
6.1.6.1.1 Threatened species (animals) and their habitat It is an offence to harm any animal that is a threatened species,
or which is part of an endangered population or an endangered ecological
community. 97 This includes harm which
is caused by any substance (e.g. poison), animal (e.g. dog), firearm, net,
trap or hunting device. The maximum penalty for harm to an endangered species,
population or ecological community is $220,000 and/or two years imprisonment.
For harm to a vulnerable species, it is $55,000 and/or one year
imprisonment. In many cases, however, it is the habitat rather than the individual animal
itself which is harmed or damaged. It is therefore also an offence to damage
the habitat of a threatened species, endangered population or endangered
ecological community if the person knows that the land concerned is habitat
of that kind. 98The maximum penalty
is $110,000, and/or one year imprisonment. It is also an offence to damage critical habitat. The maximum
penalty is $220,000 or two years imprisonment, or both. 99If
a map showing where the critical habitat is has been published in the Gazette,
then the prosecution does not need to prove that the person knew it was declared
critical habitat (they are assumed to have known). 100
It is an offence to buy, sell or have in one's possession (e.g. in a vehicle,
house, apartment or field) any animal that is listed as a threatened species
or which is part of an endangered population. The maximum penalty for an endangered species
is $220,000 and/or two years imprisonment. For a vulnerable species,
it is $55,000 and/or one year imprisonment. 101
6.1.6.1.2 Threatened plants It is an offence to pick any plant that is listed as a threatened
species, or that is part of an endangered population or endangered ecological
community. 102The maximum penalty for
an endangered species, population or ecological community is $220,000
and/or two years imprisonment. For vulnerable species, it is $55,000
and/or one year imprisonment. "Pick" includes gathering, cutting, poisoning, digging up or injuring the
plant or any part of the plant. 103For
example, slashing a paddock which contains threatened plants would constitute "picking". It is an offence to buy, sell or have in one's possession (eg in a vehicle,
house, apartment or field) any plant that is listed as a threatened species.
The maximum penalty for an endangered species is $220,000 and/or
two years imprisonment. For vulnerable species it is $55,000 and/or
one year imprisonment. 104This provision
does not apply to a landowner or lessee if the plant is naturally occurring
on their land. 105
Case study: Man fined $180,000 for clearing part of an endangered
ecological community Garrett v Williams (2006) 160 LGERA 115 The Southern Highlands Shale Woodland was listed as an endangered ecological
community under the Threatened Species Conservation Act 1995. It
is an offence to pick plants that are part of an endangered ecological community.
Mr Williams owned land in the Southern Highlands on which the listed Shale
Woodland grew. Over two separate periods, he arranged for trees of the woodland
to be cleared or cut down. The offences occurred while Mr Willliams' application
for development consent to subdivide the land was being considered by the
local council. Mr Williams pleaded guilty to the charges. The Land and Environment Court
found that the clearing was premeditated and deliberate, and that it was
done to remove an impediment to the subdivision being approved. The Court
fined Mr Williams a total of $180,000 and also ordered him to pay the prosecutor's
costs. 6.1.6.2 Defences Protection of threatened species under is not absolute. There are a broad
range of defences that a person can call on if they are charged with an offence
regarding threatened species. In short, if the offending activity was in
some way authorised (eg by a licence or development consent), then an offence
will not have been committed. The specific defences which are available differ for each offence, and all
of the defences are not covered in this Fact Sheet. However, some of the
more typical defences are described below. 6.1.6.2.1 Licences to harm, kill, etc It is a defence to a prosecution for an offence if the person had a licence
to harm or pick the threatened species and they were complying with that
licence. 106
6.1.6.2.2 Lawful development It is a defence if the work which harmed the threatened species was essential
for the carrying out of: 107
development under a development consent issued under Part
4 of the Environmental Planning and Assessment Act, an activity by a determining authority under Part 5 of the Environmental
Planning and Assessment Act, or a project approved under Part 3A of the Environmental Planning
and Assessment Act. To have the benefit of this defence, the work must have been carried out
in accordance with the relevant approval and its conditions. For example,
if a person clears land in excess of that which is permitted under a development
consent, then they cannot point to the development consent as a defence if
they have cleared the habitat of a threatened species. 6.1.6.2.3 Routine agricultural and farming activities It is a defence if the person can prove that they were carrying out work
which was reasonably necessary for: 108
clearing native vegetation for a routine agricultural activity; a routine farming activity (which does not include clearing
native vegetation); or an activity which is permitted under the Native Vegetation
Act 2003, such as clearing non-protected regrowth, continuing
an existing farming activity or engaging in sustainable grazing. Routine agricultural activities include things such as: 109
constructing dams, fences, stockyards and farm roads; removing noxious weeds; controlling noxious animals; collecting firewood (but not for commercial purposes); lopping native vegetation for stock fodder; and traditional Aboriginal cultural activities (but not commercial
activities). However, if the work, building or structure requires some form of approval
(such as development consent), then the person must wait for the approval
to be issued before carrying out the clearing. 110
6.1.6.2.4 Property vegetation plans It is a defence if the act complained of was authorised by a property vegetation
plan approved under the Native Vegetation Act 2003 (but only if
that plan had biodiversity certification). 111
6.1.6.2.5 Property management plans The Director-General may approve a property management plan which has been
prepared by a landholder. 112 A property
management plan may authorise the landowner, or others, to take certain actions
(eg to authorise Aboriginal persons to harm animals or pick plants). It is a defence to a threatened species offence if the person was carrying
out the activity concerned in accordance with an approved property management
plan. 113
6.1.6.2.6 Conservation agreements Conservation agreements also provide an important defence to threatened
species offences. It is a defence to a threatened species offence if the
activity was carried out under a conservation agreement. 114
6.1.7 Enforcement DECCW is responsible for enforcing the provisions of the Threatened
Species Conservation Act and National Parks and Wildlife Act.
The legislation may be enforced through criminal prosecutions, although
DECCW may consider using its other enforcement powers before commencing
a prosecution. These include the use of penalty notices, warning letters,
stop work orders and interim protection orders. If you think that someone has unlawfully interfered with a threatened species,
population or ecological community, you should report it to DECCW on its
Environment Line (toll free) 131 555 (24 hours). 6.1.7.1 Stop work orders The Director-General may issue a stop work order if the Director-General
is of the opinion that an activity is being, or is about to be carried out,
that is likely to: 115
Harm animals within a threatened species, population or
ecological community; Harm plants within a threatened species, population or ecological
community; Damage critical habitat; or Damage habitats of threatened species, populations or ecological
communities. Stop work orders cannot be issued for certain authorised or essential acts,
such as acts authorised by a licence, development consent, property vegetation
plan or fire fighting under the Rural Fires Act 1997. 116
Stop work orders may be issued for up to 40 days, 117 but
may be extended for such further period or periods of 40 days. 118The
Director-General is not required to notify anybody before making a stop work
order. 119 If the Director-General
is of the opinion that satisfactory arrangements cannot be made to modify
the offending action to protect the threatened species, population or ecological
community, the Director-General must recommend that the Environment Minister
make an interim protection order. 120
A person against whom a stop work order is made may appeal against the order
to the Environment Minister. 121 There
is no further (merits) appeal against a stop work order unless the order
is converted to an interim protection order. 6.1.7.2 Interim protection orders The Environment Minister may make an interim protection order over land
containing threatened species, populations or ecological communities, or
critical habitat, but only after receiving a recommendation to do so from
the Director-General. 122An interim
protection order may contain terms relating to the preservation, protection
and maintenance of the land, its fauna, plants, threatened species, populations,
ecological communities and critical habitat as well as any Aboriginal object
or places subject to the order. 123
The Minister does not need to give anyone notice before making an interim
protection order. 124 An interim protection
order has effect for such period as is specified in the order, being not
longer than 2 years, unless revoked beforehand. 125 The
Director-General must keep a public register of all interim protection orders. 126Current
interim protection orders may be found on the NSW Government Gazette . An owner or occupier of land subject to an interim protection order may
appeal against the order to the Land and Environment Court within 60 days
of receiving the order. 127
It is an offence not to comply with an interim protection order. The maximum
penalty for a corporation is $1.1 million, or for an individual, $110,000. 128
6.1.7.3 Criminal prosecutions 6.1.7.3.1 Who may bring proceedings? Only the Director-General or a person authorised by the Director-General
can commence criminal proceedings. 129 In
practice, this is usually an officer within DECCW or a police officer. 6.1.7.3.2 Sentencing options The Land and Environment Court may impose significant fines and terms of
imprisonment on offenders. 6.1.7.4 Civil remedies The Land and Environment Court may grant an injunction to stop an activity
that is causing harm to a threatened species or its habitat. It may also
make an order to remedy or restrain a breach of the Threatened Species
Conservation Act or a declaration that a provision has been breached. Any person may
bring proceedings to remedy or restrain a breach of the Threatened Species
Conservation Act. 130
EPBC Act, s 26 - 27A. EPBC Act, s 28. EPBC Act, s 18 and 18A. National Parks and Wildlife
Act 1974, s 5 (Definitions) Threatened Species Conservation
Act 1995, ss. 6(4), 10(1), listed in Sch 1, Part 4. Threatened Species Conservation
Act 1995, ss. 6(4A), 10(2), listed in Sch 1, Part 1A. Threatened Species Conservation
Act 1995, s s.. 6 (1), 10(3), listed in Sch 1, Part 1. Threatened Species Conservation
Act 1995, s s. 7(1), 10(4), listed in Sch 2, Part 1. Threatened Species Conservation
Act 1995. ss 6(2), Sch 1, Part 2. Threatened Species Conservation
Act 1995, ss. 11(1). Threatened Species Conservation
Act 1995, s. 11(2). Threatened Species Conservation
Act 1995, Sch 1, Part 2 Threatened Species Conservation
Act 1995, ss. 6(4B), 12(1), listed in Sch 1A, Part 2. Threatened Species Conservation
Act 1995, ss. 6(3), 10(2), and Sch 1, Part 3. Threatened Species Conservation
Act 1995, ss. 7(2), 12(3), listed in Sch 2, Part 2. Threatened Species Conservation
Act 1995, s. 19(1), (2). Threatened Species Conservation
Act 1995, s. 19(5). Threatened Species Conservation
Act 1995, s. 17, 128. Threatened Species Conservation
Act 1995, ss. 22, 23, 23A. Threatened Species Conservation
Act 1995, s. 24(4). Threatened Species Conservation
Act 1995, s. 27. Threatened Species Conservation
Act 1995, s. 28. Threatened Species Conservation
Act 1995, s. 30(1). Threatened Species Conservation
Act 1995, ss. 37- 47. Threatened Species Conservation
Act 1995, ss. 47(3), 48, 53, 54. Threatened Species Conservation
Act 1995, s. 55. Threatened Species Conservation
Act 1995, s. 50(b); Environmental Planning and Assessment Act 1979,
s. 5B. Threatened Species Conservation
Act 1995, s. 50. Threatened Species Conservation
Act 1995, s. 92(2). Environmental Planning and Assessment
Act 1979, s. 78A(8)(b). Fisheries Management Act 1994,
s. 220G. Fisheries Management Act 1994,
s. 220H(2)(b). Fisheries Management Act 1994,
s. 220P. Fisheries Management Act 1994,
ss. 220ZA, 220ZD. Environmental Planning and Assessment
Act 1979, s. 5C. Environmental Planning and Assessment
Act 1979, s. 5C(2)(b). Threatened Species Conservation
Act 1995, Sch 3. NSW Department of Primary Industries, 'Man
fined for killing endangered grey nurse shark' (27 August 2008), available
at www.dpi.nsw.gov.au/aboutus/news/recent-news/fishing -and-aquaculture/man-fined-for-killing-endangered-grey-nurse Threatened Species Conservation
Act 1995, s. 56. Threatened Species Conservation
Act 1995, s. 59. Threatened Species Conservation
Act 1995, s. 69. Threatened Species Conservation
Act 1995, s. 71. They are listed in Schedule 3
of the Threatened Species Conservation Act. Threatened Species Conservation
Act 1995, s. 13. Threatened Species Conservation
Act 1995, s. 19(3). Threatened Species Conservation
Act 1995, s. 74. Threatened Species Conservation
Act 1995, ss. 74(1), 77. Threatened Species Conservation
Act 1995, s. 86. Threatened Species Conservation
Act 1995, s. 90A - 90E. Threatened Species Conservation
Act 1995, s. 90B(3). Threatened Species Conservation
Act 1995, s. 91. National Parks and Wildlife Act
1974, s. 120. Threatened Species Conservation
Act 1995, s. 91(2). Threatened Species Conservation
Act 1995, ss. 92(1), 99. Threatened Species Conservation
Act 1995, s. 92(2). Threatened Species Conservation
Act 1995, ss. 94, 94A. Threatened Species Conservation
Act 1995, s. 106(1); Land and Environment Court Act 1979, s. 17. Threatened Species Conservation
Act, s. 106(1), 96(5)). Threatened Species Conservation
Act, s. 107. Threatened Species Conservation
Act, s. 108). Threatened Species Conservation
Act, ss. 96, 104. Threatened Species Conservation
Act 1995, ss. 126G - 126N. Threatened Species Conservation
Act 1995, ss. 126G - N. Threatened Species Conservation
Act 1995, ss. 126B - F. Threatened Species Conservation
Act 1995, s. 126G. Threatened Species Conservation
Act 1995, s. 126H. Threatened Species Conservation
Act 1995, s. 126J. Threatened Species Conservation
Act 1995, s. 126K. Threatened Species Conservation
Act 1995, s. 126G(2), (3). Threatened Species Conservation
Act 1995, s. 126G(4). Threatened Species Conservation
Act 1995, s. 126I(1), (2). Threatened Species Conservation
Act 1995, s. 126M. Threatened Species Conservation
Act 1995, s. 126M(2). Environmental Planning and Assessment
Act 1979, s. 78A(8)(b). Environmental Planning and Assessment
Act 1979, s. 79C(1)(b). Environmental Planning and Assessment
Act 1979, s. 79B(3), (5). Environmental Planning and Assessment
Act, s. 5B Threatened Species Conservation
Act 1995, s. 69. Environmental Planning and Assessment
Act 1979, ss. 5A(2)(f), (g). Environmental Planning and Assessment
Act 1979, s. 5A(2). Environmental Planning and Assessment Act 1979, s. 79B(5). Environmental Planning and Assessment Act 1979, s. 79B(8). Environmental Planning and Assessment Act 1979, s. 79B(9). Threatened Species Conservation
Act 1995, s. 126N. Threatened Species Conservation
Act 1995, s. 126N(2). Threatened Species Conservation
Act 1995, s. 127D. Threatened Species Conservation
Act 1995 , s. 127ZK. Threatened Species Conservation
Act 1995, s. 127ZJ. Threatened Species Conservation
Act 1995, ss. 127ZO, 127ZP. Threatened Species Conservation
Act 1995, s. 127ZO(2). Threatened Species Conservation
Act 1995, s. 127ZQ(4). Threatened Species Conservation
Act 1995, s. 127ZZD. Part 8A National Parks and Wildlife Act
1974, s. 179. National Parks and Wildlife Act
1974, s. 118A(1). National Parks and Wildlife Act
1974, s. 118D(1). National Parks and Wildlife Act
1974, s. 118C(1). National Parks and Wildlife
Act 1974, s. 118C(2). National Parks and Wildlife
Act 1974, s. 118B(1). National Parks and Wildlife
Act 1974, s. 118A(2). National Parks and Wildlife
Act 1974, s. 5. National Parks and Wildlife
Act 1974, s. 11B(3). National Parks and Wildlife
Act 1974, s. 118A(3). National Parks and Wildlife
Act 1974, s. 118A(3)(b). National Parks and Wildlife
Act 1974, ss. 118G(1), (3). National Parks and Wildlife
Act 1974, s. 118G(2) National Parks and Wildlife
Act 1974, s. 118G(3)(b). National Parks and Wildlife
Act 1974, ss. 118A(3)(a2), 118D(2)(a2). Threatened Species Conservation
Act 1995, s. 113B(1). Threatened Species Conservation
Act 1974, s. 113B(6). National Parks and Wildlife
Act 1974, ss. 118A(3)(b1), 118B(5)(a1), 118C(5)(d), 118D(2)(d). Threatened Species Conservation
Act 1995, s. 114. Threatened Species Conservation
Act 1995, ss. 114(3), (3A), (4). Threatened Species Conservation
Act 1995, s. 114(1). Threatened Species Conservation
Act 1995, s. 117. Threatened Species Conservation
Act 1995, s. 115. Threatened Species Conservation
Act 1995, ss. 118, 119. Threatened Species Conservation
Act 1995, s. 116. National Parks and Wildlife
Act 1974, ss. 91A(b), 91B. National Parks and Wildlife
Act 1974, s. 91B. National Parks and Wildlife
Act 1974, s. 91C. National Parks and Wildlife
Act 1974, ss. 91D, 91E. National Parks and Wildlife
Act 1974, s. 91I. National Parks and Wildlife
Act 1974, s. 91H; Land and Environment Court Act 1979, s. 20(1)(cf);
Land and Environment Court Rules 2007, Rule 6.1. National Parks and Wildlife
Act 1974, s. 91G. National Parks and Wildlife
Act 1974, s. 191. Threatened Species Conservation
Act 1995, s. 141F. EDO NSW