Forest Management Zoning Accountability Framework 2021 - Consultation draft
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Forest Management Zoning
Accountability Framework 2021
Consultation draft
Department of Environment, Land, Water and Planning Acknowledgment We acknowledge and respect Victorian Traditional Owners as the original custodians of Victoria's land and waters, their unique ability to care for Country and deep spiritual connection to it. We honour Elders past and present whose knowledge and wisdom has ensured the continuation of culture and traditional practices. We are committed to genuinely partner, and meaningfully engage, with Victoria's Traditional Owners and Aboriginal communities to support the protection of Country, the maintenance of spiritual and cultural practices and their broader aspirations in the 21st century and beyond. © The State of Victoria Department of Environment, Land, Water and Planning 2020 This work is licensed under a Creative Commons Attribution 4.0 International licence. You are free to re-use the work under that licence, on the condition that you credit the State of Victoria as author. The licence does not apply to any images, photographs or branding, including the Victorian Coat of Arms, the Victorian Government logo and the Department of Environment, Land, Water and Planning (DELWP) logo. To view a copy of this licence, visit creativecommons.org/licenses/by/4.0/ ISBN 978-1-76105-341-2 (pdf) Disclaimer This publication may be of assistance to you but the State of Victoria and its employees do not guarantee that the publication is without flaw of any kind or is wholly appropriate for your particular purposes and therefore disclaims all liability for any error, loss or other consequence which may arise from you relying on any information in this publication. Accessibility If you would like to receive this publication in an alternative format, please telephone the DELWP Customer Service Centre on 136 186, or email customer.service@delwp.vic.gov.au, or via the National Relay Service on 133 677, www.relayservice.com.au. This document is also available on the internet at www.delwp.vic.gov.au
Department of Environment, Land, Water and Planning
Contents
Secretary’s foreword 4
1. Introduction 5
2. Objectives 6
Purpose 6
Scope 7
Outputs 7
What is forest zoning? 7
Forest Management Zoning Scheme 7
Changes to zoning 8
What are fixed and detection-based forest management zones? 8
Roles and responsibilities 8
The role of zoning in regulation of timber harvesting 8
3. Victoria’s forest management framework 10
Forest Management Plans 10
Code of Practice for Timber Production 2014 12
CAR reserve system 12
Action Statements 13
Victoria’s Biodiversity Strategy 13
4. The Accountability Framework 14
Framework design 14
Targets database 14
Forest zoning acquittal process 16
Key metrics and assessment process 16
Performance reporting 17
6. Reporting Action Plan 19
Reporting schedule 19
Monitoring, Evaluation and Reporting 19
Continuous improvement 20
Outcomes reporting 20
Glossary 21
Acronyms 22
Appendices
Appendix 1: Strategic Forest Management Zoning Targets 2014
Appendix 2: Illustrative example of future Forest Management Zoning Report Card 2021
Forest Management Zoning Accountability Framework 2020 Consultation draft 3
Department of Environment, Land, Water and Planning
Secretary's foreword
At the Department of Environment, Land, Water and Planning (DELWP), we know
the Victorian community greatly values State forests for their ecological diversity,
cultural heritage, picturesque landscapes and the recreational opportunities they
provide. Our Department is committed to sound forest management and planning
across more than 3.2 million hectares of State forest.
In this context, we release the draft Forest Management Zoning Accountability
Framework for public consultation. The purpose of this Framework is to provide
greater transparency of the department’s forest management zoning activities
including a new performance monitoring and metrics approach (Chapter 5) that
includes performance metrics for reporting against fixed zoning actions. It also
includes a Reporting Action Plan (Chapter 6) which represents DELWP’s
commitment to a Report Card that details the status and progress on fixed forest
management zoning actions and is available to stakeholders across Victoria.
This framework goes hand-in-hand with important reforms to the Code of Practice
for Timber Production 2014 (the Code) that aim to improve clarity, accuracy and
enforceability of the Code. Among the changes is a proposal to clarify the purpose
of the Code by clearly separating the conservation strategies of the Secretary to
DELWP (that is, fixed zoning actions) from directions for timber harvesting
managers, harvesting entities and operators on how to plan and conduct timber
harvesting. The new approach to new performance monitoring and metrics
contained in this document ensures that the Secretary’s zoning activities receive
elevated transparency and accountability. The Code changes, and this new
framework, are complementary reforms and have been released for consultation
with this in mind.
A key strength of this reporting framework is that it provides a platform for
adaptive forest management. By design, future reporting outputs may highlight
instances where fixed forest management zoning is no longer aligned to
management strategies for species or consistent with on-ground forest values.
Identifying these gaps provides an opportunity to adaptively manage our State
forest so that important forest values can continue to persist for future
generations to enjoy.
As DELWP implements this framework we will continue to develop more advanced
monitoring and reporting techniques that shift forest management from being
output-focused to more outcomes-focused – so that we can be sure that
management actions deliver tangible improvements for forest values such as
threatened species.
John Bradley
Secretary to the Department of Environment,
Land, Water and Planning
Forest Management Zoning Accountability Framework 2020 Consultation draft 4
Department of Environment, Land, Water and Planning
1. Introduction
The Department of Environment, Land, Water and Regional Forest Management Plans (FMPs) outline
Planning (DELWP) manages approximately 8 million management strategies and permitted activities,
hectares (ha) of public land in Victoria, which is while also providing a network of protected areas
provided to the community for a range of uses that complement the broader National Forest
including recreational, cultural, forestry, Reserve System of national parks and conservation
conservation and government services. 4 million ha reserves. DELWP is in the process of renewing
is managed by Parks Victoria through a dedicated regional FMPs, which will be released by 2023.
system of National Parks and conservation reserves.
Much of the remaining forested land, approximately The strategic objectives of FMPs, such as
3.2 million ha, is managed by DELWP as State forest. management of high conservation or cultural
heritage values, are realised on-ground through the
State forests are managed as multi-value, multi-use application of forest management zoning. Zones are
landscapes, which means that one area may provide designed to balance objectives for conservation,
numerous benefits to Victorian communities. To management and uses (including timber harvesting).
ensure the balanced use and care of State forest for
current and future generations, and to achieve The Forest Management Zoning Accountability
landscape conservation goals, DELWP undertakes Framework 2021 provides a reporting structure that
regional strategic forest management planning. will deliver greater transparency and accountability
for DELWPs forest management activities as they
relate to forest management zoning in Victoria’s
State forests.
Figure 1: Victoria's Forest Management Zones and Protected Areas 2020
Forest Management Zoning Accountability Framework 2020 Consultation draft 5
Department of Environment, Land, Water and Planning
2. Objectives
Purpose
What were the implications of the forest
The purpose of the Forest Management Zoning management zoning objectives being
Accountability Framework 2021 is to provide a summarised in the Planning Standards?
framework for publicly reporting on DELWP’s
progress towards meeting the fixed forest The revisions to the Code in 2014 brought
management zoning targets. Examples of these together zoning objectives from Forest
targets include maintaining SMZs for 150 Masked Management Plans and Action Statements
Owls in East Gippsland and establishing SPZs over into one consolidated list in the Planning
rainforest stands of a certain size. These targets are Standards.
proposed to be excised from the Planning Standards
for timber harvesting operations in Victoria’s State However, this consolidation has led to a lack
Forests 2014 (the Planning Standards) through 2021 of clarity around the roles of the managing
Code amendments. authority (DELWP) and harvesting entities
The Planning Standards were included in 2014 as an and operators such as VicForests with
appendix to the Management Standards and respect to these objectives.
Procedures for timber harvesting operations in
Victoria’s State forests 2014 (the MSPs), which is an
Including aspirational objectives for DELWP
incorporated document of the Code. in an instrument that was developed for the
purpose of regulating harvesting entities
The Minister for Energy, Environment and Climate and operators created confusion.
Change is currently consulting on amendments to
the Code that will clearly separate the Zoning objectives for DELWP are better
responsibilities of the Secretary to DELWP from situated in a document that is separate to
those of timber harvesting managers, harvesting the instruments used to regulate timber
entities and operators. harvesting.
The Code and the MSPs will continue to be the The Secretary has therefore documented
primary regulatory instruments for timber these objectives in Appendix 1 and will
harvesting in Victoria.
demonstrate accountability and
Importantly, regulations that apply to timber transparency in meeting these objectives
harvesting managers that were previously included through the implementation of the
in the Planning Standards, such as detection-based Accountability Framework and associated
responses for threatened species (see further Reporting Action Plan.
explanation of detection-based zones under ‘3.
What is forest zoning?’ below), will be retained and
consolidated into the MSPs.
The Forest Management Zoning Accountability
Framework 2021 will ensure that DELWP continues to
demonstrate accountability for fixed forest
management zoning targets that have been excised
from the Planning Standards – See Figure 3.
All fixed forest management zoning actions from the
Planning Standards have been compiled and are
provided for reference in Appendix 1.
Forest Management Zoning Accountability Framework 2020 Consultation draft 6
Department of Environment, Land, Water and Planning
Scope Forest Management Zoning Scheme
This report focuses exclusively on fixed forest The FMZS consists of three zones. Each zone has
management zones that have been implemented on defined management priorities and permitted uses,
public land in Victoria, principally within State forest, which are described in detail in regional FMPs. The
noting that some species have conservation three zones are:
strategies that span both public and private land in
Victoria. • Special Protection Zones (SPZs) are managed
specifically for conservation values, forming a
This approach increases accountability and network designed to complement the formal
transparency for the Secretary’s zoning conservation reserve system. Timber harvesting
commitments. The first report will focus on the operations are excluded from SPZs.
zoning targets contained in the 2014 publication of
the Planning Standards. Keeping the initial scope • Special Management Zones (SMZs) are managed
constrained to these targets will ensure the initial to conserve specific features, while catering for
report can be published in a timely manner. The timber harvesting operations under special
intention is for the reporting program to then be conditions specified in SMZ plans.
expanded to include forest management zoning
• General Management Zones (GMZs) are managed
announcements or targets designated since the
for a range of uses and values, but timber
2014 publication of the Planning Standards, such as
harvesting operations will have a high priority.
those planned as part of the Threatened Species
and Communities Risk Assessment - Interim
Protections and Management Actions - April 2021.
Outputs
The Accountability Framework (Chapter 5) and
Reporting Action Plan (Chapter 6) contained herein
complement a suite of data improvement projects
undertaken by DELWP. They facilitate consistent,
repeatable and accessible reporting on forest
management actions and progress against targets.
The Accountability Framework details how the report
is compiled, its data inputs and methods. The
Reporting Action Plan is DELWP’s commitment to
publicly reporting on the outcomes of the
accountability process, timeframes and continuous
improvement.
What is forest zoning?
Forest management zoning is a commonly used
land management tool that spatially describes
permitted uses and priorities for certain areas. In
Victoria’s State forests, zoning is the product of
extensive strategic planning. It brings together
international, national and state obligations and
objectives into a tool that can be used for on-ground
management.
In Victoria, FMPs are ‘working plans’ under section 22
of the Forests Act 1958 and give operation to
Victoria’s zoning system – the Forest Management
Zoning Scheme (FMZS).
Forest Management Zoning Accountability Framework 2020 Consultation draft 7
Department of Environment, Land, Water and Planning
Changes to zoning Roles and responsibilities
Victorian forests are dynamic living systems that The FMPs establish the Secretary to DELWP as
contain immense natural, social and cultural values responsible for maintaining and updating the FMZS
and resources. The current FMPs were developed in for detection-based and fixed zoning, including
2014 with the best available information at the time. associated spatial data. Any changes must confirm
They were designed to be flexible to new information, the aims and targets prescribed in the FMPs. This
enhanced technology and evolving community direct line of responsibility means that proposed
expectations, and will be formally updated as DELWP changes to the Code do not alter the Secretary to
renews the FMPs by 2023. DELWP’s responsibility to manage and appropriately
update the FMZS.
The ability to create, change or move forest zones is
critical for an active forest management system Because FMPs are designed to respond to new
capable of responding to new information or shocks information, detections of certain species or values
such as bushfire. The forest management system in the landscape can trigger a zoning response. It is
allows for changes to be made through an the Secretary to DEWLP’s (or delegated officers)
amendments process or, for short-term changes, a responsibility to record this change in the FMZS and
temporary exemptions process. spatially represent it in the FMZ100 layer, which is a
publicly available dataset maintained by the
Examples of amendments include: Victorian Government.
• Values (e.g., biodiversity, cultural) detection
triggers new SPZ or SMZ The role of zoning in the regulation of
• Identified mapping errors or incorrectly located
timber harvesting
boundaries Zoning is an administrative planning tool which
indicates to land managers where certain activities
• Re-zoning areas that no longer contain the value it
and uses may and may not occur. Location of a zone
was designed to protect
can change the regulatory requirements for an
• Temporary re-zoning to balance competing entity undertaking timber harvesting activities. The
operational goals in the Code of Practice of Timber enforcement powers for contravention of
Production 2014 (the Code). requirements to harvest in a particular way within
zones are via the Sustainable Forests (Timber) Act
2004 (SFT Act) and the Code, not the FMZS.
What are fixed and detection-based
forest management zones?
Fixed forest management zones delineate areas of
public land primarily within State forest where
management priorities focus on the conservation of
fixed values or assets – such as waterways and
wetlands, biodiversity values, historic and cultural
places and recreation sites. Within these delineated
areas, specified management activities such as
timber production must be excluded or modified to
protect those values. Importantly conservation
strategies for certain species prioritise the selection
of habitat within existing parks and reserves where
forest values are least likely to be disturbed as seen
in Diagram 1.
In contrast, detection-based zoning actions are only
triggered where there is a verified detection
associated with a value, e.g., sighting of a threatened
flora or fauna species.
Forest Management Zoning Accountability Framework 2020 Consultation draft 8
Department of Environment, Land, Water and Planning
Figure 2: Stylised example of forest fixed and detection-based forest management zoning within
the FMZ
Timber
Harvesting
Coupe
General
Management Detection-based
Zone (GMZ) Zoning (SPZ)
Forest value:
Leadbeaters Possum
Fixed zoning (SPZ)
Forest value: waterway
National Detection-based
Park
Zoning (SPZ)
Forest value:
Leadbeaters Possum
Fixed zoning
Forest value: owl
Forest Management Zoning Accountability Framework 2020 Consultation draft 9
Department of Environment, Land, Water and Planning
3. Victoria’s forest management framework
Forest management planning in Victoria is
undertaken within a framework of legislation, policies
and subordinate instruments, such as the Code, that
enable Victoria to meet international, national and
state obligations and objectives. See Figure 3.
Forest Management Plans
The founding legislation for Victorian forest
management is the Forests Act 1958 (Vic), which
states that a working plan for management of
forests must be developed (Section 22). In
accordance with this legislation, a set of regional
FMPs were developed between 1992 and 2011.
These plans outline strategic objectives and
operational guidance using values identified by
science, the community, Traditional Owners, and
interest groups. The development of these plans
included extensive compilation and analysis of data
and information on the uses and values of State
forests, including natural, cultural, social, resource
and economic values. They also incorporated
broad-ranging consultation with biological and
ecological experts as well as regional communities
who live close to these places.
Will Forest Management Plans be updated?
As described above, the primary tool used by
existing FMPs to specify management objectives is Yes. Forest Management Plans will be
the FMZS, an administrative planning tool
reviewed to align with community
comprising zones that set priorities and permitted
expectations and the best available science
uses in different parts of State forest. FMPs reinforce
that the management strategies spatially by 2023.
represented through zoning are based on the best
information available at the time and that zoning
should be flexible to new knowledge and a changing
landscape. The regulatory framework, through the
Code, allows for this with processes to add, remove
and change zoning locations and boundaries based
on new information.
The Planning Standards were included in 2014 as an
appendix to the Management Standards and
Procedures for timber harvesting operations in
Victoria’s State forests 2014, which are incorporated
in the Code. The Code and its incorporated
documents form part of the regulatory framework
for forest management, which is designed to support
clear and effective regulation of timber harvesting in
Victoria’s State forests. An overview of Victoria’s
regulatory framework for timber harvesting in State
forests is illustrated in Figure 3.
Forest Management Zoning Accountability Framework 2020 Consultation draft 10Department of Environment, Land, Water and Planning
Figure 3: Regulatory framework for forest management zoning and timber harvesting
in State forests
National Forest Policy
Statement (1992)
Montreal Process
Indicators and
Criteria
JANIS criteria
Sustainable
Forests (Timber) Forests Act Conservation Forests Flora and Fauna Regional Environment
Act 2004 1958 and Lands Act 1987 Guarantee Act 1988 Forest Protection &
Agreements Biodiversity
Act 2002 Conservation
(Cth) Act 1999 (Cth)
Code of Practice for Action statements
Allocation Order
Timber Production for threatened
2013 as amended (2014) species
Timber Release
Plans
Forest Management
Management Standards &
Regional Forest
Plans Procedures for Timber
Agreements
(1992-2011) Harvesting (2014)
Sustainability (1997-2000)
Charter for
Victoria’s
State Forests
New Forest
Management
Criteria and Zoning
Indicators for Forest Comprehensive,
Accountability
Sustainable Management Adequate and
Framework Representative reserve
Forest Zoning Scheme
Management requirements
RFA 5-yearly
State of the implementation report
Forests reports Harvesting Timber harvesting and independent review
(5 yearly) compliance
Legend
Legislation Policy Primary focus of the New
Forest Management Zoning
Subordinate instrument Other instruments Accountability Framework
Forest Management Zoning Accountability Framework 2020 Consultation draft 11Department of Environment, Land, Water and Planning
Code of Practice for Timber Production One of the key achievements of the RFAs was the
establishment of the CAR reserve system, based on
2014 nationally agreed criteria, also known as the ‘JANIS’
The purpose of the Code is to provide direction to criteria.1
timber harvesting managers, harvesting entities and The ‘JANIS’ criteria set out targets for the
operators to deliver sound environmental conservation of ecosystems and this level of
performance when planning for and conducting protection in RFA regions is considered high by world
timber harvesting activities. standards. 2
The Code incorporates the Management Standards The CAR reserve system is made up of dedicated
and Procedures for timber harvesting operations in reserves, informal reserves, and areas within
Victoria’s State forests 2014 (MSPs), which provide production forests where values are protected by
detailed operating instructions to managing prescription.
authorities, harvesting entities and operators,
including region specific instructions, for timber Dedicated or formal reserves are set aside for
harvesting operations in Victoria’s State forests. conservation, through areas such as national parks.
Any person undertaking timber harvesting Informal reserves are areas set aside for
operations in State forests is required to comply with conservation purposes in forests that are otherwise
the Code, including the MSPs. This requirement is production forests, such as special protection zones
provided for in section 46 of the SFT Act and is in State forests. Fixed forest management zoning
included in licences and authorisations issued under actions in State forest comprise a key component of
the Conservation, Forests and Lands Act 1987 (CFL the informal reserves, which complement formal
Act), the Forests Act and the SFT Act. reserves within the more extensive CAR reserve
system.
Compliance with the Code is enforced by the
Conservation Regulator, which was established in Victoria’s RFAs commit the State government to
2019. identify and manage forested areas in line with the
nationally agreed CAR reserve system, informed by a
The Code was made in the context of there being a Comprehensive Regional Assessment of
working forest management zoning scheme that environmental, Indigenous, social and economic
reflects fixed zoning strategies derived from FMPs forest values.
and Action Statements. This includes Forests Act
working plans (FMPs) in place, which are the overall The RFAs accredit Victoria’s forest management
guide for zoning targets. While the 2014 Code and system as aligned with the principles of ecological
the Planning Standards incorporated fixed zoning sustainable management and use. In accordance
actions for State forests, they are derived largely with the Environment Protection and Biodiversity
from FMPs and from Action Statements and Conservation Act 1999 (Cth), forest operations that
therefore exist in their own right outside the Planning are undertaken in accordance with the CAR reserve
Standards. system of the RFAs satisfy their comprehensive
environmental assessments and are exempt from
the separate assessment and approval provisions of
CAR reserve system the Act.
State forest management in Victoria must also meet The Secretary to DELWP is required to conduct
international and national forest management five-yearly reviews of the operation of the RFAs in
standards, which are achieved, in part, through fixed Victoria, the purpose of which is to assess and
forest zoning to meet Comprehensive, Adequate and evaluate the performance of the RFA against an
Representative (CAR) reserve system obligations. extensive range of forest management, cultural and
The CAR reserve system is an integral component of ecological criteria.3
the Regional Forest Agreement (RFA) process.
In this context, detailed and consistent reporting on
Victoria has five RFAs in place with the the status and implementation of fixed zoning
Commonwealth Government. These agreements actions within State forest and across public land is
were established between 1992 and 2000 and were important for transparent reporting on the status
recently modernised and extended for a further 10 and performance of the CAR reserve system and
years through to 2030. RFAs in Victoria.
1 JANIS is the Joint ANZECC/MCFFA National Forest Policy Statement Implementation Subcommittee
2 Commonwealth Government Department of Agriculture, 2020. Protecting our Forest Environment https://www.agriculture.gov.au/
forestry/policies/rfa/about/protecting-environment
3 Further information on Regional Forest Agreements https://www.agriculture.gov.au/forestry/policies/rfa
Forest Management Zoning Accountability Framework 2020 Consultation draft 12Department of Environment, Land, Water and Planning
Action Statements
Will new FFG Action Statements be
Forest Management Plans distil information from a developed? If so, how will this affect the
range of sources to provide a place-based guideline implementation of the accountability
for forest management. Species-specific Action framework?
Statements and Victoria’s biodiversity strategy,
Biodiversity 2037, are two other important sources of Yes, new or updated FFG Action Statements
fixed forest management zoning targets within State for species and communities considered
forest. under the Threatened Species and
Communities Risk Assessment (December
The Flora and Fauna Guarantee Act 1988 (FFG Act)
requires the Secretary to DELWP to prepare an
2020) will be prepared by DELWP by April
Action Statement for any listed taxon or community 2022. Many of these will respond to the
of flora or fauna or potentially threatening process significant impact of the 2019-20 Victorian
as soon as possible after that taxon, community or bushfires. The Accountability Framework will
process is added to the Threatened List or Process provide a mechanism to record where
List. Action Statements provide information on a previous fixed forest management zoning
species, reasons for their decline and threats which targets have been superseded by new
affect it. Their purpose is to report on past conservation strategies.
management actions and establish a set of new
management actions, and may include additional
information on what needs to occur in the future to
conserve and manage a taxon, community or
threatening process. Victoria’s Biodiversity Strategy
Action Statements are made in collaboration with a In 2017, DELWP released Protecting Victoria’s
range of stakeholders to ensure the delivery of the Biodiversity: Biodiversity 2037. Under the FFG Act, the
most strategic and effective actions, including fixed Secretary must make a Biodiversity Strategy for the
zoning. conservation of the State’s flora and fauna. This
strategy must include proposals for achieving the
Action statements will continue to inform fixed forest objectives of the Act; targets to measure the
management zoning actions across Victoria’s public achievement of the objectives; and a framework for
land. monitoring and evaluating the implementation of the
strategy. Victoria’s biodiversity target set under
More broadly, the Secretary to DELWP (as the body
Protecting Victoria’s Biodiversity: Biodiversity 2037, is
corporate under the CFL Act) must administer the
for there to be a net improvement in the outlook
FFG Act in such a way as to promote its objectives. If
across all flora and fauna species by 2037.
the Secretary is of the opinion that action taken or to
be taken by a public authority, such as timber Fixed zoning actions introduced through Victoria’s
harvesting, is likely to threaten the persistence of a FMPs and Action Statements will make a significant
listed taxon or community of flora or fauna or a contribution to the State’s efforts to meet its
critical habitat, the Secretary may require the public biodiversity targets by 2037 by helping ensure that
authority to consult with the Secretary either before there is sufficient suitable habitat to facilitate the
the action starts, or if the action has already started persistence of key threatened species.
within a specified period of the request being made.
The current Forest Management Plans incorporate
guidance provided by the Action Statements that
were available at the time of their release (from 1992
to 2011). The Planning Standards also incorporate
fixed zoning targets from Action Statements
released up to 2014.
Forest Management Zoning Accountability Framework 2020 Consultation draft 13Department of Environment, Land, Water and Planning
4. The Accountability Framework
The Accountability Framework is the process for Targets database
acquitting the application of fixed forest zoning
actions and targets previously described in the DELWP will maintain a Targets Database as a
Planning Standards. consolidated set of fixed forest management zoning
actions and associated targets for Victoria’s State
The purpose of this framework is to ensure that the
forests. This database comprises all existing
obligations or targets in all relevant source
landscape-scale (Fixed) zoning actions previously
documents are captured in a way that allows
described in the Planning Standards and now
uniform, repeatable reporting of performance
documented at Appendix 1.
metrics. This will facilitate consistent information on
forest management actions, and consistent The structure of the Targets Database is based on a
reporting on progress and outputs across a range of series of six key themes (Biodiversity, Cultural Values,
reporting frameworks. Knowledge Values, Landscapes, Recreation and
The Accountability Framework is designed to apply Water). Under each theme, there are multiple values
principally to State forest. However, some of the fixed and targets. A summary of these themes and values
forest management zoning actions previously listed is set out in Table 1.
in the Planning Standards apply to all public land
and in some cases to private land. In this report the
Themes Values
actions are reported on the land tenure as previously
described in the Planning Standards and now
Fauna: Individual fauna species
documented at Appendix 1.
Flora: Individual flora species
Framework design
Linear Reserves
An overview of the Accountability Framework and
the processes needed to support transparent Biodiversity
Vegetation Communities:
reporting of fixed zoning actions is shown in Figure 4.
- Ecological Vegetation Classes
The Accountability Framework comprises the - Rainforest
following core components:
- Old growth forest
• a Targets Database for fixed forest management
zoning actions; Aboriginal
Cultural
• an Acquittal Process for fixed zoning actions to Historic European
establish the extent to which these actions meet
specified targets, and that they are incorporated Education
in FMZ100; Knowledge
Research
• an Assessment Process based on a set of five key
performance metrics established under this Landscape Reserves
framework; and
Heritage Rivers
• periodic publication of the Forest Management
Zoning Report Card based on the assessment of Landscape Natural Catchment Areas
progress using the key performance indicators.
DELWP will prepare this report on a five-yearly Natural Features Zones
basis to align with other periodic reporting,
River Zones
including Victoria’s State of the Forests report,
State of the Environment report, and five-yearly Recreation Recreation
RFA reviews.
Stream Protection
Water Water Supply Protection Areas
Wetlands
Table 1: Forest management zoning themes and
values
Forest Management Zoning Accountability Framework 2020 Consultation draft 14Department of Environment, Land, Water and Planning
Figure 4: Forest Management Zoning Accountability Framework 2021, in the context of proposed
reforms to Code of Practice for Timber Production 2014
Forest Management Zoning Accountability Framework 2021
Internal processes and/or data Publicly available
Other documents Outputs
The Targets Database will be used by DELWP to bushfires.
describe and account for all fixed zoning actions.
There are also many zoning actions that are
This will inform the development of the new FMPs by
currently reported on without clear targets. This may
2023, policy development, and the ongoing work of
change in future reports as the original intent of the
the Conservation Regulator in overseeing
target is reviewed and potentially clarified, or new
compliance with the Victorian Forest Management
targets are developed in accordance with ongoing
System (VFMS).
planning processes.
Each target operates differently. Some of the targets
are clearly defined and relatively straight forward to
implement. Others are conditional upon specified
situations or management inputs. Some have
conditions that when target thresholds are achieved,
new zones of higher quality will replace existing
zones. This enables an adaptive approach to forest
management, which is evidence-based and able to
respond to major events, such as the 2019-20
Forest Management Zoning Accountability Framework 2020 Consultation draft 15Department of Environment, Land, Water and Planning
Forest zoning acquittal process Key metrics and assessment process
DELWP carries responsibility for maintaining the A key feature of the Accountability Framework is the
FMZS and ensuring that approved fixed forest development of a set of objective performance
management zoning actions are implemented or are metrics, to be applied consistently across all the
in the process of being implemented within a themes and forest management values represented
reasonable timeframe. As part of this responsibility, in Appendix 1.
DELWP regularly reviews the zoning scheme to
The five metrics are: Completeness; Extent;
incorporate changes made over time.
Appropriateness; Currency; and Data Quality. These
In addition to facilitating DELWP’s ongoing performance metrics are described in further detail
stewardship role, the Accountability Framework will below (Performance Reporting).
require a periodic (five-yearly) acquittal process that
Within each of the five metrics, two descriptive
encompasses reviewing the entire set of fixed forest
measures are used: progress and performance.
management zoning actions (Appendix 1). This
enables comprehensive and consistent reporting Progress describes the proportion of actions
with other periodic reports produced by the State completed and is reported as a percentage. A
and Commonwealth governments. performance rating is given to the progress and
reported as a simple traffic light indicator of
DELWP will conduct spatial analyses of the FMZS
accomplishment (good, fair, poor).
and its alignment with the Targets Database. This
analysis will provide data on the number of actions An absolute value is also provided to illustrate the
completed, the extent to which they were completed, scale of the actions. The metrics are designed to
and whether specified target thresholds have been record performance for the whole state, for
reached, for each theme and value in Table 1. individual themes, values, and specific values e.g., a
particular species. They can also be used for the
The acquittal process will provide reporting data
geographic units chosen for reporting.
with a detailed breakdown for geographic units. The
Planning Standards published in 2014 used multiple The use of these metrics provides the basis for a
geographic units for the listing of zoning actions. The consistent set of reporting tables, which can be
most prominent geographic unit was Forest presented on a five-yearly basis.
Management Areas (FMAs), or groups of FMAs that
The reporting tables use the concept of each zone
intersect with RFA areas. Action Statements typically
having a gross area. The gross area is the area of the
specify actions for FMAs but may feature other
zone created by the fixed forest management zoning
geographic units as required for the individual
action for the specific value. This enables
species.
assessment of each prescribed action in the
Recognising this variation in the use of geographic acquittal process and the performance reporting.
units, the Accountability Framework has been However, forest areas can support multiple values,
designed to work for any geographical unit – and therefore zones created by fixed forest
provided the reporting on each value is aligned with management zoning actions may overlap. Given this,
the geographic unit for the target specified for that the gross areas cannot be accumulated to give the
value. total reserve area because of these overlaps. The
total area of reserves and the primary purposes for
This periodic acquittal process will provide the
creating these reserves will need to be assessed and
spatial data required for assessment using
reported separately.
performance indicators, to be reported through the
Accountability Framework. It will also support regular
assessment of the currency and quality of data
represented in FMZ100, which can be updated as
required through this process. This may require
DELWP to address or review fixed zoning actions that
have not reached their target.
Forest Management Zoning Accountability Framework 2020 Consultation draft 16Department of Environment, Land, Water and Planning
Performance reporting
The five key performance metrics for the Accountability Framework are described below.
Metrics 1 Metrics 2
Completeness Extent
Completeness is the proportion of the target fixed Extent is the proportion of the area required to be
zoning actions that have been completed, relative completed for fixed forest management zoning
to the total number of discrete targets listed in targets to be met. It is required to demonstrate to
Appendix 1. It is required to demonstrate the number what extent the fixed forest management zoning
of fixed zoning actions that have been implemented. actions have been applied. It is calculated as the
simple proportion of the summed gross area of
It is calculated as the proportion of the total number actions that have been fully implemented against
of actions that have been fully acquitted against the the summed area of actions set in the targets. The
target number of actions outlined in Appendix 1. The proportion is recorded as the progress for the metric.
proportion is recorded as the progress for the metric.
The metric also records the number of actions The metric also records the total of the gross area
completed. The progress target is 100 per cent, to of the actions completed by the zoning type, SPZ,
demonstrate that all target actions are complete. SMZ or formal reserve. The progress target is 100 per
cent to demonstrate that all the required actions are
complete.
Metrics 3 Metrics 4
Appropriateness Currency
Appropriateness is the proportion of the number Currency represents the proportion of actions that
of fixed zoning actions that are still meeting their have been reviewed in accordance with specified
original objective and are still appropriate to meet thresholds and are therefore considered ‘current’.
the objectives of long-term, landscape-scale forest It is required to demonstrate that reviews of the
management planning. This metric does not refer to fixed forest management zoning actions are being
the quality of target zones in Appendix 1; it describes completed in the timeframe specified in Appendix 1.
whether or not the landscape configuration of the All reviews completed after the Planning Standards
fixed forest management zones as implemented were published in 2014 are incorporated in this
is still appropriate for the value it was designed to metric.
protect.
For individual values it is recorded as a series of
An example of where a fixed forest management outputs:
zone is no longer appropriate might include a
recreation site that has been moved, or fixed zones • Has the review threshold been reached?
established to protect a nesting site, which is no
longer standing due to fire. • Has the required review been completed?
The metric is not applied to zoning actions that do
Appropriateness is calculated as the proportion of
not have reviews specified in Appendix 1 or where
zones that have been assessed as still relevant to
the threshold for review has not been achieved.
the protection of specified values, compared to the
The target for specific values is to have all reviews
number of zones present for that value.
completed.
Appropriateness is tested by asking: ‘Are the values
For aggregations of values, themes or geographic
still present?’ ‘Yes’ or ‘No.’ This metric can be the
units, the metric is calculated as the proportion of the
most challenging to measure on an objective basis,
number of reviews completed against the number of
as each value and forest management zone need to
reviews required. The progress target is 100 per cent.
be assessed on a case-by-case basis. The progress
target is 100 per cent.
Forest Management Zoning Accountability Framework 2020 Consultation draft 17Department of Environment, Land, Water and Planning
Metrics 5
Data quality
Data Quality is an assessment of the quality of the On this basis, the data quality for performance
data used for the metrics for each fixed zoning reporting on each theme and value is assessed to be
action. It is required to indicate the confidence in the either:
calculation of the metrics.
• Good: complete records of data, geospatially
Each fixed zoning action is assessed for the quality referenced in FMZ100, and no known major
of the data and information used in deriving the disturbances in the area since the last update.
acquittal of the zoning actions and the derivation of
other metrics. This assessment considers the extent • Fair: incomplete records of data for some specific
to which: values within the group, or recognition that the
• fixed zones are known, recorded and confirmed values have not been reassessed since more
recent disturbance events, e.g., bushfires.
• the gross area of the zone can be demonstrated in
a specific or general spatial layer • Poor: incomplete or inconsistent data, or a lack of
recent reporting in relation to review thresholds.
• zones are unaffected by major disturbance events
that could affect the values present.
Metrics 1 Metrics 4 Metrics 5
Performance ratings Performance ratings
The Accountability Framework incorporates a simple For metric 5 (Data Quality), this assessment will
traffic light indicator system to highlight the extent to be made largely on a qualitative basis, as an
which the progress for each grouping of values and indicator for DELWP and stakeholders on the
themes is Good, Fair or Poor. level of confidence or reliance they can have on
the ratings for the other performance indicators.
For metrics 1 to 4 (Completeness, Extent, A similar approach is used in the State of the
Appropriateness, and Currency), this assessment will Environment and State of the Forests reports.
be determined through a quantitative assessment
of progress, as illustrated below: On this basis, the traffic light indicator system is
also applied:
Good: 80% – 100% progress
Fair: 50% – 79% progress Good: 80% – 100% progress
Poor: 0% – 49% progress Fair: 50% – 79% progress
Poor: 0% – 49% progress
Forest Management Zoning Accountability Framework 2020 Consultation draft 18Department of Environment, Land, Water and Planning
5. Reporting Action Plan
The Reporting Action Plan represents DELWP’s Future reports, providing comprehensive analysis of
commitment to implement the Accountability the status of zoning actions against the metrics
Framework and publish a Report Card that details proposed, will be prepared at five-yearly intervals to
the status and progress of fixed forest management coincide with the other forest management
zoning actions to stakeholders across Victoria, reporting processes such as the State of the Forest
including environmental groups, forestry industry Report.
organisations and local government. The full report
Annual updates, providing information on zoning
card will be produced every 5 years, with annual
amendments and improvements to our overall
updates of relevant information such as zoning
approach to zoning over the past year, will be
amendments.
provided in the years between.
An illustrative example of what the Forest
Management Zoning Report Card 2021 could look Monitoring, Evaluation and Reporting
like is provided at Appendix 2. It should be noted that
Monitoring, evaluation and reporting (MER) supports
Appendix 2 does not contain actual zoning data.
continuous improvement by collecting and reporting
on data in a way that enables evidence-based
Reporting schedule planning and decision making.
The first Forest Management Zoning Report Card will By design, future reporting outputs may highlight
be delivered in mid-2022. This report will represent a instances where fixed forest management zones are
point-in time account of progress towards achieving no longer aligned to management strategies for
fixed zoning actions and targets. species or consistent with on-ground forest values.
Identifying these gaps provides an opportunity to
Future reports using this framework are expected to
adaptively manage our State forest so that
be able to present an update using a consistent set
important forest values are protected for future
of performance metrics and show trends over time,
generations to enjoy.
where the previous report can be compared against
the new. Where any incomplete actions are identified, these
will be addressed through priority zoning
amendments or more holistic processes like the RFA
CAR reserve assessment.
Figure 5: Timeline for further development of Forest Management Zoning Accountability
Framework 2021
DRAFT 2021 Amend Code State
amedements of Practice of the
to Code of Timber Forest
Practice Timber Production Reporting
Production 2014 2014
Forest Management
Zoning amends
reported anually
DRAFT Forest Final Forest Future
First
Management Management Zoning
Zoning
Zoning Zoning Report
Report Card
Accountability Mid 2021 Accountability Late 2021 Mid 2022 released Late 2023
released
Framework Framework
Forest Management Zoning Accountability Framework 2020 Consultation draft 19Department of Environment, Land, Water and Planning
Continuous improvement Outcomes reporting
Victoria is undergoing a significant program of Good public policy and service delivery must
reform across forest management strategy, planning demonstrate value to the community. Focussing on
and operations. This Accountability Framework and outcomes rather than outputs, compels DELWP to
Reporting Action Plan, as well as forest zoning itself, measure and report on what we are doing, and how
will evolve over time as we develop and implement those activities benefit Victorians and the native
more sophisticated tools and strategies to manage flora and fauna in this State.
State forests, and as native timber harvesting is
Due to the historical approach to forest
phased out by 2030.
management zoning both the Accountability
Concurrent planning processes that may affect this Framework for fixed zoning actions and the
framework, or benefit from output data include: Reporting Action Plan are necessarily output-based
products. DELWP is committed to implementing a
• new Forest Management Plans due by 2023; transition to outcomes-based reporting over time,
which will draw on the Victorian State Government
• new or renewed of Actions Statements;
Outcomes Framework architecture5 and provide
• RFA five-yearly review process, including CAR consistent and enduring guidance for management
reserve assessment; and decisions and future forest management planning.
• aligned outcomes-based reporting processes such
as those described in the Biodiversity 2037
Monitoring, Evaluation and Reporting Framework.
To ensure that its fixed zoning actions remain up to
date, DELWP will periodically evaluate this reporting
structure to ensure that it is fully integrated with
Victoria’s forest management framework.4
4 Biodiversity 2037 Monitoring, Evaluation, Reporting and Improvements Framework (MERF) Version 2.0
5 Victorian Government Outcomes Reform, Department of Premier and Cabinet, Victorian State Government
Forest Management Zoning Accountability Framework 2020 Consultation draft 20Department of Environment, Land, Water and Planning
Glossary
‘Accountability Framework’ means the set of ‘Planning Standards’ means the Planning Standards
process, procedures and datasets that are used to for timber harvesting operations in Victoria’s State
improve fixed forest management zoning forests 2014, previously Appendix 5 to the
accountability, transparency and reporting. Management Standards and Procedures for timber
harvesting operations in Victoria’s State forests 2014.
‘Action Statement’ means an Action Statement
prepared as part of the Flora and Fauna Guarantee ‘Public land’ means unalienated land of the Crown
Act 1988 Vic. for any listed taxon or community of managed and controlled by the Minister for
flora or fauna or potentially threatening process as Environment and Climate Change, the Minister for
soon as possible after that taxon, community or Agriculture and Food Security, or the Secretary,
process is listed. whether or not occupied under a licence or other
right (but not including land occupied under a
‘Biodiversity’ means the natural diversity of all life:
licence under the Victorian Plantations Corporation
the sum of all our native species of flora and fauna,
Act 1993 Vic.)
the genetic variation within them, their habitats, and
the ecosystems of which they are an integral part. ‘Rainforest’ means closed (>70 per cent projected
foliage cover) broadleaved forest vegetation with a
‘Code’ means the Code of Practice for Timber
more or less continuous rainforest tree canopy of
Production 2014.
variable height, and with a characteristic
‘Cultural heritage’ means anything with aesthetic, composition of species and life forms, of at least 0.1
archaeological, architectural, cultural, historical, ha in area and 20 metres width. Rainforest includes
scientific or social heritage both Aboriginal and closed transitional and seral communities with
non- Aboriginal. emergent eucalypts (including 'cool temperate
mixed forest' as a recognised subset of rainforest),
‘Fauna’ means any animal including reptiles, birds,
that are of similar botanical composition to mature
mammals, marsupials and fish.
rainforests in which eucalypts are absent.
‘Flora’ means any type of plant.
‘Regional Forest Agreements’ are 20-year
‘Forest’ means an area with a high density of trees agreements between the State of Victoria and the
typically composed of an overstorey (canopy or Commonwealth for the conservation and
upper tree layer) and an understorey. sustainable management of native forests. The
Agreements provide certainty for forest-based
‘Forest Management Area’ (FMA) means a territorial
industries, forest-dependent communities and
unit for planning and management of State forests
conservation. They are the result of years of
in Victoria. The approximate location and extent of
scientific study, consultation and negotiation
FMA boundaries are defined by the Department’s
covering a diverse range of interests.
corporate spatial dataset FMA25.
‘Secretary’ as defined in the Sustainable Forests
‘Forest Management Plans’ means plans prepared
(Timber) Act 2004 Vic. means the body corporate
to allocate zones for forest management designed to
established by Part 2 of the Conservation, Forests
meet objectives for conservation, management and
and Lands Act 1987 Vic. sometimes described as the
uses including timber harvesting
Secretary to the Department of Environment, Land,
‘Forest Management Zoning Scheme’ (FMZS) means Water and Planning.
an administrative planning scheme comprising
‘Special Management Zone' (SMZ) means a
zones that set priorities and permitted uses in
component of Forest Management Zoning Scheme
different parts of State forest. The FMZS is
(MZS) which are managed to conserve specific
established by the Forest Management Plans, which
features and values, while catering for sustainable
are working plans pursuant to section 22 of the
timber production and other utilisation activities
Forests Act 1958 Vic.
under certain conditions, specified in SMZ plans.
‘Management Standards and Procedures’ means
‘Special Protection Zone' (SPZ) means a component
the Management Standards and Procedures for
of Forest Management Zoning Scheme (FMZS) which
timber harvesting operations in Victoria’s State
are managed primarily for conservation values,
forests 2014.
forming a part of Victoria’s Comprehensive,
Adequate and Representative reserve system.
Timber harvesting operations are generally excluded
from SPZ.
Forest Management Zoning Accountability Framework 2020 Consultation draft 21Department of Environment, Land, Water and Planning
‘State forest’ has the same meaning as in the
Forests Act 1958 Vic. and any other category of
public land where timber harvesting operations are Acronyms
a permitted land use but does not include land
‘CAR’ means Comprehensive, Adequate
occupied under a licence under the Victorian
Plantations Corporation Act 1993 Vic. and Representative
‘Timber’ is a general term used to describe standing ‘DELWP’ means the Victorian Department
trees or felled logs before processing into wood of Environment, Land, Water and Planning
products. This includes timber from trees or parts of
trees which are specified as available for timber ‘FMA’ means Forest Management Area
harvesting operations but does not include firewood
‘FMZ’ means Forest Management Zone
collected for domestic use.
‘GMZ’ means General Management Zone
‘Timber production’ has the same meaning as
timber harvesting operation. ‘ha’ is hectare
‘Water supply protection area’ means a catchment
‘JANIS’ is the Joint ANZECC/MCFFA National
from which water is used for domestic water supply
purposes. Water supply protection areas include Forest Policy Statement Implementation
Special Water Supply Catchments, Designated Subcommittee
Catchments identified in forest management plans
‘MNES’ is Matters of National Environmental
and catchments protected under the statutory
planning provisions in the Planning and Environment Significance
Act 1987 Vic. ‘SMZ’ means Special Management Zone
‘Waterway’ means a permanent stream, temporary
‘SPZ’ means Special Protection Zone.
stream, drainage line, pool or wetland as defined in
this Code.
‘Wetland’ means a permanent spring, swampy
ground, wetland or other body of standing water. A
wetland may dry out seasonally. A wetland will
support distinctive riparian vegetation (not including
E. camaldulensis), indicative of extended periods of
saturation and distinguishable from vegetation
communities in surrounding areas.
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