Farms versus nature: how do we decide what to protect?

Australian farmers take pride in their efficient and productive farming systems, competing in the global economy and without many of the large subsidies given to their counterparts in Europe and North America. There are many agricultural success stories in Australia – such as reducing soil erosion through…

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Our thinly spread efforts to prop up the environment are failing and it is time for tough decisions about what we can realistically preserve. Flickr/rexboggs5

Australian farmers take pride in their efficient and productive farming systems, competing in the global economy and without many of the large subsidies given to their counterparts in Europe and North America. There are many agricultural success stories in Australia – such as reducing soil erosion through conservation tillage – but major environmental problems have also emerged.

These include increased salinity, soil acidification and, increasingly, loss of sediment and nutrients which cause eutrophication of waterways (a harmful excess of certain nutrients, commonly nitrogen and phosphorous) and algal blooms. The ongoing extermination of coral on the Great Barrier Reef – down from covering 50% of the reef in the 1960s to 16% now – is largely caused by such factors.

Billions of dollars have been spent to protect the environment. This funding supports programs such as Landcare, the Natural Heritage Trust, the National Action Plan for Salinity and Water Quality and its successor, the Caring for Our Country Program. Unfortunately, evaluation has shown that whilst many programs have been successful at raising landholder awareness, there is almost no evidence that they have prevented, reversed, or even stabilised the decline of our environment.

In bloom: algae thrives on our inability to contain the fertilisers used in farming. Flickr/suavehouse113

There are many reasons for this failure, but among the most important is that funding is poorly targeted and spread very thinly (the “Vegemite” approach) across vast areas of the landscape.

Governments and agricultural industries alike are understandably attracted to “soft” approaches, such as providing information and giving small, temporary incentives. Most Australian agri-environmental programs have been based on the following assumptions:

  • Participation of landholders somehow equates to improving the environment.

  • Voluntary adoption of “best-management practices” is highly effective.

  • Voluntary participation of landholders in programs will be sufficient. In many circumstances this is unlikely to be the case.

The failure of such programs and the smallness of environmental funding pose a large dilemma for governments and the broader community. The reality is that not everything can be protected; choosing to fund protection of one area means abandoning another. And is government prioritising the right areas?

In short, choosing a much smaller number of environmental projects and funding them enough to actually succeed would deliver much greater environmental value for public money. It would also reduce constant criticism that government programs aren’t doing enough.

Facing unpleasant realities initially sparks denial, anger, and despair. However, it is important to understand and face ugly truths, so that we can change and start actually restoring the environment. A team working with the Future Farm Industries Co-operative Research Centre have designed a system called Investment Framework for Environmental Resources (INFFER). It embeds economics into environmental decision-making, making it possible to integrate available science (biophysical, ecological and social) with local information to help make more informed decisions about environmental investment.

A resident of Raymond Island in the Gippsland Lakes. An estimated 80% of Australia’s koala habitat has been cleared since European settlement. Flickr/platypusbloke

INFFER has been applied to the Gippsland Lakes, which are threatened by excessive nutrient losses and algal blooms. The Gippsland Lakes Taskforce set an environmental target of 40% phosphorus reduction. INFFER’s Gippsland Lakes analysis shows that achieving this target requires close to $1 billion funding over 25 years. The allocated funding (approximately $35 million to date) falls drastically short.

This realistic level of funding is very off-putting. But compounding it, the scale of land management changes, including retiring land from agricultural use, is likely to be highly unpopular. The political difficulties, high cost and scale of change mean achieving the 40% phosphorus reduction target is also not cost-effective.

A lower environmental target of 20% would not achieve the same degree of environmental improvement (although it would still be expected to reduce the frequency of algal blooms) but would be much more cost-effective. The funding required to achieve a 20% phosphorus reduction target is about $80 million.

Faced with the reality that not all environmental assets can be protected, difficult decisions need to be made based on the value of the environmental asset, the threats faced, the environmental goal required, the feasibility of protection and the risks involved.

Although INFFER highlights some politically difficult challenges, it also provides a huge opportunity for more informed environmental decision-making and investment. Sciences and economics are vital to provide evidence-based decision-making. Tools such as INFFER provide a way to integrate the factors needed to make informed decisions.

“Win-win” outcomes for agriculture and the environment are not always possible: discussion about the trade-offs is required. Conflicts between maintaining agricultural production and protecting the environment occur in all parts of Australia, and indeed globally.

If we are to protect important national assets such as the Great Barrier Reef and the Coorong/Lower Lakes on the Murray River, we need to have much more informed policy discussion and analysis. Assessment of the costs and feasibility of achieving sufficiently large and measurable environmental outcomes should be mandatory requirements for the large sums of public money being spent. And we also need informed discussion and policy analysis about where we should maintain agricultural production and trade off environmental values – a situation currently happening by default in many areas.

These views are personal and do not necessarily reflect the views of the Victorian government.

Comments welcome below.

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16 Comments sorted by

  1. Tim Scanlon

    Author and Scientist

    I agree Anna. I'd also add a couple of other points.

    Farmers are already working 103 hours per week at peak times - 54 hours per week at the lowest - (DAFWA data for wheatbelt farmers), so it isn't just a case of being able to ask or tell them to do environmental management. They have to be compensated and have external professionals in organisational and lead roles. I won't go into the current problems with such roles (turnover is usually very high).

    The next issue is the election funding cycle. Every time a program starts to have an impact it seems to go on hold or is scrapped. Considering that most farmers have seen several of these schemes come and go, they are likely to be wary or sick of seeing the wheel reinvented. Any strategy has to be a guaranteed long term program.

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  2. Jim Wright

    Retired Civil/Structural Engineer, IT Consultant/Contractor

    I am currently running a blog trying to determine the absolute maximum population carrying capacity of Australia's land mass at different levels of lifestyle and amenity. Beyond a certain level, a return to village-style living in remote areas seems necessary. To identify the best usage for the land (settlements, agriculture, biodiversity shelter and so forth), I have proposed overlaying the entire continent with a 1 km. sq. grid (about 8 million elements) identified simply by GPS co-ordinates. Physical…

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    1. Gil Hardwick

      Anthropologist

      In reply to Jim Wright

      I'm very much inclined to agree with you in principle, Jim, except to say all that this has already been done. What has been settled on in practice are integrated water catchments as most productive of good outcomes, not least because they define pre-existing cultural blocs that can be tapped for their accumulated wisdom, as much as their inherent bioregional integrity.

      There is an enormous accumulation of data, social norms and solid practical experience. I dare to suggest that we can start implementing any and all of this tomorrow, assuming we are able to assemble the expertise we already have available into coherent, collaborative working groups rather than being perpetually fractured, fragmented and alienated from the process itself.

      Water is the key, and clean water the challenge. Bring your engineering in, by all means, the more the better.

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  3. Lennert Veerman

    Senior Research Fellow, School of Population Health at University of Queensland

    This kind of deliberate weighing of options requires a public that is informed of the services ecosystems deliver in terms of cleaning water, air and soil, fisheries, tourism etc.

    The Murray-Darling proceedings show that just doing the science is not enough to ensure rational decision making on these trade-offs.

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  4. Peter Ormonde

    Peter Ormonde is a Friend of The Conversation.

    Farmer

    This is interesting stuff ... and I found the comments particularly interesting. Sadly I couldn't access all the links provided - needed passwords and the like.

    But I'm afraid I must agree strongly with Lennert above regarding the limitations of a purely technical approach to such issues.

    And look I know that the authors will say they've incorporated social variables and good on them for that but I'm afraid one cannot take the politics and the self-interest out of it by a technical calculation…

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  5. Tony Gardner

    logged in via Facebook

    Very interesting.
    Not sure I agree with piling all the eggs in a few baskets.
    And also hope that the investments will slowly steadily build momentum and eventually results will flow across the board.
    Optimistic

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  6. Peter Davies

    Bio-refinery technology developer

    Interesting article, unfortunately the title Farms Vs Nature embodies everything that is wrong with the debate. Most farmers see themselves as part of the natural environment, not in opposition, though they recognize the landscape changes.

    List them as part of the problem though and you have your work cut out trying to include them as part of the solution.

    One approach then is to help adjust the economic weighting to restore some balance where this is at issue. In the Gippsland Lakes example…

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    1. Gil Hardwick

      Anthropologist

      In reply to Peter Davies

      I'm inclined to extend Peter's caution here to include the ubiquitus 'we' in the subtitle. In framing the sentence 'Farmers' and 'Nature' are rendered as its objects, yet the subject 'we' as usual remains as elusive as ever. The reason I refrained from responding when the article was first posted is that I needed a few days to digest what was actually being said.

      Who precisely are these 'we' that 'us' farmers, environmentalists, land managers, all the rest of 'us', can go talk to finally to find…

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    2. Peter Davies

      Bio-refinery technology developer

      In reply to Gil Hardwick

      Ah yes, the Royal "We".

      "Us" have watched this used repeatedly over the years but it is not just the State that uses it to effect, the Greens have mastered it and more.

      Did our use of the "Greens" in the preceding sentence strike a note of discord when used in the context of a criticism? This is because they have effectively appropriated the "high moral ground" and therefore inherently they must be right; right? A powerful tool in dis-arming dissent.

      In the early 90's I attended one of…

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    3. Gil Hardwick

      Anthropologist

      In reply to Peter Davies

      Ah, yes, onto it. I've studied with these guys, sat in on the same lectures, tutorials, seminars, conferences . . . at the end of the day you have to treat it like another field trip, observing them and taking notes.

      The tricks they get up to are unbelieveable . . . nah, not here . . . .

      Better to focus on the reality. I have an enduring quote on one of my web pages that I have attributed to Hugh McLeod Gordon, the GREAT teacher of veterinary science in post-war Australia who died at a good…

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    4. Peter Davies

      Bio-refinery technology developer

      In reply to Gil Hardwick

      Another great mind unfortunately lost to us earlier this year was Jim Johnson, a hydrogeologist who led more than 25 major UN groundwater missions and had no peers in Australia, which meant he was ignored over here.

      He wrote a report on the MIA as a junior in the then NSW Water Resources Commission in the 1950's which raised the likely possibility of serious salinity arising across the large areas of the catchment, in part through then current irrigation practice but more importantly as the many…

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    5. Gil Hardwick

      Anthropologist

      In reply to Peter Davies

      Well that's it then. That's the message needing to be sent back, let's cut the crap finally . . .

      We were white-anted over here on an insistence that we adhere to the "Uncertaincy Principle", which means in practice that unless 120% certain there will be NO "harmful environmental effects" there will be no funding.

      But that's impossible, of course. Such policy generates nothing more than paranoia, and as we have experienced over the past ten years a culture of paralysis and fear. That's why we adhere to best practice with constant monitoring rather than perfect practice. I didn't even mind our books being audited, good.

      My rejoinder has always been that if the Uncertainty Principle was applied to itself we would quickly see the thing disappear right up its own arse, right where it belongs.

      But they don't like you saying that . . . ;-)

      I was born in Griffith, BTW.

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    6. Peter Davies

      Bio-refinery technology developer

      In reply to Gil Hardwick

      Yes, the "Uncertainty Principle" an almost Pythonesque construct very worthy of inclusion in an episode of the ABC "Yes Minister".

      We too have been its victims.

      Is there a Excrementus Reductionus Form we need to fill in for consideration of the necessary approvals so they can issue a (time limited) conditional agreement for us to get on with the job?

      (Allowing for this process to take many months, or in one case of ours 12 years to say "Oh by the way we have discovered you were right all…

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  7. Bernie Masters

    environmental consultant at FIA Technology Pty Ltd, B K Masters and Associates

    Anna and I have previously discussed what I see as serious problems with the INFFER approach to selecting environmental assets to protect using our limited amount of funds. Theoretically, it makes sense to bring economic reality to the process that sets our environmental priority actions. But the practical reality is that the INFFER process is itself expensive, requiring quite detailed economic and scientific input, reducing the very limited funds available for Natural Resource Management (NRM…

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  8. wilma western

    logged in via email @bigpond.com

    Algal blooms have certainly been a problem for the Gippsland Lakes but it's an oversimplification to lay the whole blame on agricultural run-off , and the program of research is an ongoing one. Local farmers tend to point the finger at town sewerage and storm water runoff , let alone pollution from all the pleasure boats with few pumpout stations actually working etc. Apart from the irrigated dairy farming on the Macalister and a bit of vegie farming I would question whether East Gippsland grazing enterprises use all that much fertitizer . More to be learned I guess.

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  9. Gil Hardwick

    Anthropologist

    OK, Anna, starting to see the nature of the issues we face yet?

    Your "increased salinity, soil acidification and, increasingly, loss of sediment and nutrients which cause eutrophication of waterways and algal blooms" have not just emerged, they've been with us all the time.

    More bean counters at the top are not going to help. As Bernie points out they only add more expense up there in the city somewhere without the benefits ever filtering down to where they are needed.

    Endlessly complex…

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