Pukulpa Pitjama Ananguku Ngurakutu - Welcome to Aboriginal Land - is the primary interpretive message of Uluru - Kata Tjuta National Park. Nguraritja are happy and proud to share the Park with visitors and would like them to learn about Tjukurpa and how important the Park is. It is important, though, that this happens in ways that are ecologically sustainable and that do not interfere with Nguraritja privacy and their right to continue to use the land. Nguraritja expect visitors to respect their country.
In setting directions for managing visitors in Uluru - Kata Tjuta National Park, the Board of Management and Parks Australia are mindful that the Park is a world-renowned attraction and that tourism is a major land use of the Park. When preparing the Plan of Management consideration must be given to the encouragement and regulation of appropriate use, appreciation and enjoyment of the Park by the public.
The Director of National Parks and Wildlife has a legal responsibility to ensure that tourism in the Park is managed in a way that respects the wishes of Nguraritja and conserves the Park’s cultural and natural heritage. Increasing commercial employment opportunities to support community aspirations for gaining further economic benefit from the Park must be provided during the life of this Plan. Care must also be taken of visitors, to ensure that their visit is safe as well as enjoyable.
Tourism is the fastest growing export industry in Australia and government at all levels is involved in marketing and promotion. Along with other places of natural beauty in Australia, such as Kakadu and the Great Barrier Reef, Uluru - Kata Tjuta has become an important attraction for visitors. Many tour operators derive a large proportion of their business from the Park. It is regarded as one of the ‘must see’ visitor destinations.
The Park attracted 371,939 fee-paying visitors in 1999. This was an increase of 9.5% on the total for 1998. Thirteen per cent overall growth in visitor numbers is predicted during the term of this Plan.
Given the Sydney Olympic Games in the year 2000 and the introduction of direct airline flights between Sydney and Yulara, Parks Australia and the Board of Management must be prepared for the anticipated increased visitor numbers, and yet continue to demonstrate high standards of World Heritage national park management.
Section 5 - Uluru - Kata Tjuta National Park Plan of Management 2000 - VISITORS | Zoe
In examining possible visitor management systems for the future, Parks Australia, the tourism industry and the Board of Management have considered various options that will enhance their ability to cope with the demands of an increasing number of people visiting the Park, whilst ensuring the protection of Park values and visitor experience. The broader elements of a strategic approach to visitor management are dealt with in this Plan; detailed aspects will be developed through the Board of Management in consultation with stakeholders.
The tourism and recreation opportunities associated with Uluru - Kata Tjuta National Park must be viewed in a regional context, along with opportunities available in national parks such as Watarrka, the West Macdonnells and Finke Gorge. Development of additional tourism and recreation opportunities in Uluru - Kata Tjuta National Park is likely to focus on upgrading interpretation and facilities.
• a clear strategic direction for proper visitor management at Uluru -Kata Tjuta National Park is necessary, so that the needs of the Board of Management, Nguraritja, the tourism industry, Parks Australia and other interested parties are met whilst Park values are maintained
• site planning should support Nguraritja in their wish to gain economic benefit from the Park
• all site development should be approached in a holistic, integrated fashion, with appropriate environmental evaluation
• management practices and Park planning should be designed to improve the quality of visitors’ experience
• the possibility of the tourism industry contributing to resource development and maintenance in the Park should be considered
• the potential impact of the Sydney 2000 Olympic Games and the anticipated post Olympic Games increase in the number of visitors to the Park need to be constructively managed
• appropriate funding will be required to ensure that the quality of visitor management and the standard of infrastructure are suitable for a World Heritage national park
• existing toilet facilities within the Park require upgrading, to cope with additional visitor numbers, and additional facilities need to be provided
Aims
• to provide for an enjoyable and safe visitor experience through a strategic approach to visitor management consistent with the protection and promotion of Park values, the maintenance of privacy and respect for Tjukurpa, Anangu residents and Nguraritja
• to provide for the Park’s status in a regional context as the highest profile tourist attraction in Central Australia
• Site planning. A site planning master plan will be developed in consultation with Anangu, the tourism industry and other stakeholders in the early stages of the Plan of Management. This will ensure that site plans are developed in an integrated fashion.
• Site plans will be developed in accordance with existing joint management consultation protocols for the main areas of use. The aim will be to optimise visitors’ satisfaction, safety and comfort in the Park and to better accommodate the needs of disabled people. Plans will take account of the following:
• the base of the climb and the Mala Walk track-head - road and car park relocation, improved shade and seating, increased safety information, interpretation with an emphasis on the cultural significance of the area, Anangu viewpoints and alternatives to doing the climb;
• the requirement for additional and upgraded toilet facilities;
• the Uluru ring road - alternative road configurations, designed to move vehicular traffic further away from Uluru;
• the Uluru sunset viewing area - a general rationalisation to enhance visitors’ experience and safety;
• the Uluru sunrise viewing area - evaluation of the location and a general rationalisation to enhance visitors’ experience and safety;
• the Uluru base walk-shade, water, improved interpretation, increased safety information, and directional signs;
• Mutitjulu Waterhole car park - shade, improved interpretation, increased safety information, and improved car park configuration and aesthetics;
• the Cultural Centre and Park Headquarters picnic area - shade and improved facilities generally, in conjunction with the development of a business plan;
• Kata Tjuta visitor sites - shade and increased safety information;
• links between the Cultural Centre and Uluru;
• access for disabled people.
• Three-year schedule of works. A rolling three-year schedule of projected needs for developing visitor facilities in the Park will be
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Figure 6 Access to the Park
maintained. It will be reviewed annually and will take into account the expected demands associated with the Sydney 2000 Olympic Games.
• Managing visitor numbers. A strategy will be developed with reference to the Uluru Crowding Study (Centre for Leisure Research 1992), for action that can be taken to manage visitors at peak times, to maintain the quality of visitors’ experience and to protect sensitive areas.
• New visitor areas. Proposals for extending existing visitor sites or creating new visitor areas will be examined and if approved by the Board will be implemented subject to operational and budgetary constraints.
• Toilet facilities. As a priority guidelines will be developed to deal with current and increasing problems associated with managing human waste in the visitor areas.
• Restricted areas. Some parts of the Park (such as areas set aside for scientific research, Aboriginal living areas, archaeological and sacred sites, and areas of outstanding conservation significance) require restrictions on access. Site planning does not preclude the future closure of areas under the Regulations for the continuation of Nguraritja cultural practices.
• Monitoring. The effectiveness of site-management plans will be monitored in consultation with the Tourism Consultative Committee during the term of this Plan. If anomalies are identified as impairing optimum protection of environmental, social and cultural values, and presentation of the Park, remedial measures will be taken.
Road access to the Park is via the Lasseter Highway from Yulara and the Docker River road (with a permit from the Central Land Council) from Western Australia (see Figures 6 and 7). All other road access to the Park is restricted to authorised people.
The upgrading of the Laverton (Western Australia) to Winton (Queensland) road, as proposed by the Outback Highway Development Council and Laverton Shire Council, and the possible increase in heavy traffic may affect the Park detrimentally.
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Figure 7 The road system in and near the Park
The current alignment of the ring road around Uluru is not ideal: it is considered too close to a number of sacred sites and gives rise to environmental concerns. The alignment has been incrementally developed and formalised over time, rather than being part of a ‘planned’ solution. Some deleterious impacts have resulted from traffic being close to visitor and cultural areas at Uluru.
Nguraritja, the Board of Management and Parks Australia encourage park visitors to first visit the Cultural Centre in order to gain an understanding of Tjukurpa, before undertaking other activities in the Park. The current alignment of the road approaching Uluru does not sufficiently encourage this pattern of visitation.
Camping is not permitted in the Park, so extended overnight walking tracks have not been developed. In addition, the proximity to places of sensitivity to Nguraritja precludes visitors’ use of some areas.
Walking tracks are provided in the following Park locations (see Figures 9 and 10):
• around the base of Uluru;
• Walpa (Olga) Gorge;
• the Walpa (Valley of the Winds) Walk;
• Mutitjulu Waterhole;
• Kata Tjuta dune viewing area;
• the climb at Uluru;
• The Liru walk.
Bicycles are available for hire in Yulara and a small but increasing number of visitors use bicycles to go into the Park, especially to the Cultural Centre and Uluru.
Air access is via Connellan airport, which is outside the Park to the north of Yulara. Helicopter and aircraft landings in the Park are permitted only in emergencies. Helicopter facilities are provided at Connellan airport and Yulara. The use of aircraft in and over the Park requires adequate controls, so that visitors and Park residents remain safe, the Mutitjulu Community retains its privacy, and cultural values are protected, in accordance with the ‘Fly Neighbourly’ agreement.
Visitor use of the Park concentrates on a number of sites that, during peak periods of the year and times of day, can become quite crowded. Among these sites are the climb, Mutitjulu Waterhole, Walpa (Olga) Gorge, and some of the art sites on the Mala and Mutitjulu Walks.
• visitors entering restricted areas are in contravention of Tjukurpa values and Park regulations
• the development of adverse attitudes in response to restrictions in some parts of the Park
• overcrowding in popular areas during peak periods
• control of vehicular and pedestrian traffic into the Mutitjulu Community and protection of areas of significance to Anangu
• the difficulty in controlling air traffic to protect cultural values, visitor experience and the rights of Mutitjulu residents.
• the increasing potential for unregulated entry to the Park by visitors from Western Australia
• the need to develop alternative road configurations to encourage visitors to first visit the Cultural Centre before undertaking other activities in the Park.
• environmental damage to the Park resulting from off-road driving
• the unsightliness of some current road alignments
• the safety of users of roads and walking tracks
• the increasing cost of maintaining roads and tracks in the Park
• the social, cultural and environmental impacts of major developments on Park values and Mutitjulu Community
Aims
• to provide privacy for the Mutitjulu Community and Anangu activities and to protect restricted Tjukurpa sites
• to manage and monitor all traffic, including air traffic, in the Park to protect national and cultural values, visitors’ experience and safety, Park-management operations and the Mutitjulu Community
• to enhance the quality of visitors’ experience through, for example, avoidance of vehicle congestion and better control of visitor numbers at some sites, and to eliminate the unpleasant visual impacts of current road alignments
• to re-align some roads to eliminate their detrimental effects on areas of cultural significance
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Figure 9 Walking Tracks around Uluru.
• to investigate alternative means of efficiently moving visitors through the Park that would enhance social, cultural and environmental values
• to ensure that social, cultural and environmental impacts of major developments are fully assessed before they proceed
• Lead-time for changes. The tourism industry will be formally consulted through the Tourism Consultative Committee and whenever possible given 18 months’ lead time for changes to existing arrangements that may affect tour business. In cases of emergency, safety risk, to allow for Nguraritja cultural activities, or changes which are widely supported by the industry, substantially less notice may be necessary.
• Impact assessment. Any major developments such as the Outback Highway will undergo full social, cultural and environmental impact assessment under relevant legislation.
• Roads. Visitors’ vehicles, including motorbikes and bicycles, will be restricted to approved roads and tracks. Their use will be regulated as necessary to protect the natural and cultural values of the Park as well as visitors’ enjoyment, the privacy of Park residents, and restricted cultural sites. Roads may be closed, rehabilitated, relocated or opened to better protect and present the Park’s natural and cultural values.
• With the exception of approvals permitted by the Mutitjulu Community, access to the Community will remain closed to the public.
• The Director of National Parks and Wildlife may approve the temporary closure of the Park or certain areas in it if necessary, in accordance with the Lease, to allow for cultural activities
• Safe locations along roadways for pull-in bays, to allow for photography will be identified and constructed.
• Re-alignment of the Uluru ring road will be subject to detailed site planning with a view to relocation further away from Uluru.
• Options for alternative means of efficiently moving visitors through the Park will be examined.
• Rehabilitation of disused roads and tracks will continue, with priority being given to rehabilitation of roads and tracks around the base of Uluru and Kata Tjuta.
• Walking tracks. The existing walking tracks will be maintained and where appropriate upgraded and re-aligned, unless it is necessary on environmental, cultural or safety grounds to close or rehabilitate them.
• With the support of the tourism industry, Parks Australia will promote the use of other walking tracks as alternatives to the climb.
• The feasibility of creating new walks and the development of circulation patterns and other points of interest to assist a more even distribution of visitors through the Park, particularly at peak times, will be assessed in the following locations:
• new short walks in the vicinity of the Cultural Centre;
• a self-guided interpretive walk through blue mallee vegetation on the Kata Tjuta road;
• variations to the Uluru base walk;
• other suitable locations agreed by the Board of Management.
• Additional information and education will be provided to encourage people to stay on marked tracks.
• Cycle Paths. If sufficient demand becomes evident, consideration will be given to providing cycle paths adjacent to current road pavements and in association with new or existing walking tracks in other areas.
• Helicopter Landings. The helipad adjacent to Park headquarters will be maintained. Helicopter landings in the Park will be permitted only in cases of emergency, for Park-management purposes, or for other authorised purposes. These guidelines will be enforced to ensure the safety of visitors and Park residents and to maintain privacy and cultural values. Fixed-wing and rotary aircraft will be encouraged to follow the ‘Fly Neighbourly Agreement’ conditions for the Park.
• Cultural Centre. Visitors and tour operators will be encouraged to visit the Cultural Centre to view the interpretive messages before they go to other sites in the Park.
• Reducing Overcrowding. Where overcrowding or traffic congestion impedes the protection of Park values or limits visitors’ enjoyment and appreciation, active management will be introduced, in consultation with the tourism industry. Before restrictions are introduced alternative measures will be examined. The options which may be considered include;
• encouraging tour operators to reschedule visits to certain areas of the Park;
• redesign of some car park and track head areas;
• introduction of a shuttle bus or other transport services;
• limiting the number of visitors at major sites at any particular time, which may be done through a site-booking system or simply by limiting the capacity of car and bus parking areas;
• restricting access to specified sites at specified times to nominated tour operators;
• providing alternative opportunities for visitors;
• improving visitor flows-for example, by using circular walking tracks.
5.2 Appropriate visitor use
5.2.1 General
The range of activities offered in Uluru - Kata Tjuta National Park must be considered in the context of the local area and the southern region of the Northern Territory national parks system. Visitors to Uluru - Kata Tjuta National Park engage in a number of activities:
• appreciation of natural features and wildlife
• appreciation of Anangu culture and art sites
• walking
• climbing Uluru
• viewing from the air
• sunset and sunrise viewing
• scenic driving
• picnicking and barbecues
• photography, filming and artwork
• bicycle riding.
Viewing Uluru and Kata Tjuta from the air is an established and popular activity. There is, however, some concern that it impinges on the enjoyment of other visitors. There is also concern about breaches of the ‘Fly Neighbourly’ agreement for aircraft use over areas of the Park such as the Kata Tjuta domes and Uluru.
For environment protection and cultural reasons camping is not permitted in the Park. There is, however, a variety of accommodation at Yulara, adjacent to the Park.
A number of walking tracks-ranging from ‘class A’, mobility impaired standard, to ‘class B’ and ‘class C’, are provided in the Park. As noted, extended walking tracks are not provided because overnight stays in the Park are not permitted.
Picnic facilities, including parking areas, barbeques and toilet facilities, are provided.
• the need to safeguard Nguraritja values and perceptions of the landscape and World Heritage cultural and environmental values
• the limited capacity of arid zone systems to accommodate particular activities without long-lasting adverse effects
• the need to accommodate the differing aspirations of Park visitors
• given the limited area of the Park, the need to offer a sufficient range of recreation opportunities
• the availability and variety of alternative recreational opportunities elsewhere in parks and reserves in central Australia
Aims
• to provide for appropriate recreational use of the Park
• to provide facilities to allow for appropriate use of the Park and to increase visitors’ awareness and enjoyment of the Park’s natural and cultural resources
• Night-time closure. Closure of the Park to visitors between specified hours will continue in order to protect Park values, ensure visitors’ safety and respect the wishes of Nguraritja, Any exceptions to such closure will need to be considered and approved by the Board of Management.
• Restr icted activities. A number of activities will generally not be allowed in the Park: hang-gliding, parachuting, ballooning, rock climbing, concerts, weddings, car rallies, athletic events, competitive racing, and any other events the Board considers unsuitable in terms of the maintenance of Park values and Tjukurpa.
• Following detailed consideration by the Board of Management, Parks Australia and Nguraritja, it has been agreed that the year 2000 Olympic torch relay will start in the Park.
• The domes of Kata Tjuta are strictly off limits to visitors. Access to Kata Tjuta is only permitted along the established walking tracks.
• Photography of identified sacred sites by visitors is not allowed. Signage and interpretive explanations will be the primary means of conveying this message. Protective fencing will be erected where necessary.
• Camping by tourists will not be permitted in the Park.
• Visitors may use gas barbeques, but no open fires are permitted.
• Aircraft. Air tours over the Park will continue in accordance with the ‘Fly Neighbourly’ Agreement, but where this activity conflicts with other Park objectives regulatory steps will be taken. The Director of National Parks and Wildlife will continue to liaise with the Civil Aviation Authority
and Ayers Rock Resort Management to ensure that such tours do not conflict with Park values and Park use objectives.
• Picnicking. If necessary, additional picnic facilities, including parking areas and toilets, will be provided at suitable locations in the Park. Visitors may use gas barbecues only: no open fires will be permitted.
• User groups. The requirements of the different types of recreational users will be assessed and efforts will be made to provide appropriate recreational opportunities, particularly for the mobility impaired, the elderly and the young.
Although climbing Uluru remains a popular activity for some visitors, it is the view of Nguraritja that visitors should not climb. They consider that to climb is to show disrespect for the spiritual and safety aspects of Tjukurpa. They are very concerned about visitors’ safety. Each time a visitor is seriously or fatally injured at Uluru, Nguraritja share in the grieving process. Tjukurpa requires that Nguraritja take responsibility for looking after visitors to their country: this ‘duty of care’ is the basis of their stress and grieving for those injured. Parks Australia shares these views.
• the need to inform visitors of the views and values of Nguraritja with regard to climbing
• the need to improve visitor safety
• the possible introduction of a requirement for all potential climbers to undertake a briefing dealing with cultural and safety matters
• the need for greater emphasis and opportunities for visitors to appreciate the natural and cultural heritage of Uluru
Aims
• to discourage people from climbing Uluru
• review and integrate strategies and policies associated with activities in and around Uluru
• Climb route. Climbing will be permitted only on the existing Uluru climb and climbers will be required to keep to the marked route.
• Closures. As in the past, the climb will be closed if conditions compromise visitors’ safety. Where possible, contingency plans will be implemented, although there may be times when safety considerations preclude this.
• Review. Conduct a review of the strategy and policies associated with activities around Uluru.
• Site planning. Site planning for the base of the climb - Mala Walk track head will aim to change the emphasis away from the climb route. This will involve road and car park relocation, better shade and seating, and more safety information.
• Reconfiguration of the Uluru ring road will be subject to detailed planning with a view to moving the road further away from Uluru.
• Alternatives. Suitable alternative activities will be developed and promoted to visitors; among these will be directing visitors to the Cultural Centre to gain more information about not climbing and placing greater emphasis on the walks around Uluru.
• Interpretation. The message Nganana Ta tintja Wiya - ’We Never Climb’ will be presented in interpretive material, during guided tours and on signs, to encourage people not to climb Uluru.
• The tourism industry will be encouraged to provide pre-visit information nationally and internationally, and tour guides will be required to tell clients that climbing Uluru is culturally inappropriate.
• Pre-climb Briefings. A requirement may be introduced during the life of the Plan for all potential climbers to undertake a briefing on cultural and safety matters.
• Cultural Centre. Tour operators and independent visitors will be encouraged to visit the Cultural Centre, as an introduction to Park values and so they can learn about the reasons for not climbing Uluru.
• Monitoring. Three years into the term of this Plan there will be a review, to gauge the success of the work done to discourage climbing and to identify alternative or additional measures that may be necessary including improved ways of telling visitors about why climbing is inappropriate, better ways of managing climbing or possible future closure of the climb.
In keeping with the previous Plan of Management, the Cultural Centre was opened in October 1995 to coincide with the celebrations marking the tenth anniversary of the hand-back to Aboriginal traditional owners of the land consisting of Uluru - Kata Tjuta National Park.
The Cultural Centre’s interpretations and displays are an essential vehicle for conveying messages, particularly about Tjukurpa, Park values, and the commitment to joint management. This information is crucial to visitors’ understanding of the Park’s cultural and natural values.
The Cultural Centre also supports Anangu enterprise by providing high-quality sales outlets for Maruku Arts and Crafts, the Ininiti souvenirs and kiosk goods, Anangu Tours, and Walkatjara Arts (the Mutitjulu Community art enterprise). It is also the Parks Australia outlet for information about Park activities. In addition, it is an alternative visitor destination and so relieves pressure on other attractions during peak periods.
Development of the building concept was a cooperative effort: Anangu, Park staff and the architects conceived a free-form structure built from locally made mud bricks and resembling the two snakes Kuniya and Liru confronting each other across an ancient battlefield. The resulting structure has gained numerous architectural awards, including the 1996 Tracy Award for the best building in the Northern Territory.
Nyangatja panya palyanu Cultural Centre kuniya wiru mulapa ngaranyi. Anangu tjutangku nyankula kulintjaku ka nyangatja Anangu uwankaraku arnga nguru palyanu.
• the maintenance and day-to-day operating costs of the Cultural Centre
• coordination of Cultural Centre functions, including information provision, cultural programs, commercial operations, maintenance and future developments
• securing increased Anangu involvement in operations and programs based at the Cultural Centre and encouraging increased Anangu benefit from commercial and employment opportunities
• helping other Anangu businesses seeking accommodation in the Cultural Centre
• resolution of outstanding matters related to the tenure of business enterprises in the Cultural Centre
• the operating hours of the Cultural Centre and their relationship to patterns of visitation
• the photography policy at the Cultural Centre and its impact on visitors’ experience, Anangu cultural sensitivities, and promotional activities
• increasing the number of visitors to the Park who go to the Cultural Centre as the first part of their experience of the Park
• interpretation provided at the Cultural Centre will play an important role in discouraging climbing of Uluru
Aims
• to ensure that the Cultural Centre continues to function year round as an attraction of the highest quality through the provision of information, cultural performance and art, with maximum Anangu participation
• to ensure that the Cultural Centre is promoted as the primary information point for people visiting the Park.
• Leases. Enter into lease agreements with all business enterprises currently operating in the Cultural Centre and make such agreements a prerequisite for future businesses.
• Interpretation. To continually use the Cultural Centre as the primary source of interpretive information for visitors, especially in relation to messages discouraging climbing Uluru.
• Investigate and implement ways of ensuring that the Cultural Centre is the first information point for people before undertaking other activities in the Park.
• Anangu use. Develop and support cultural programs with Anangu at the Cultural Centre.
• Management. Ensure that the Cultural Centre Steering Committee plays an active role in the Centre’s development, promotion and activities.
• Outsourcing. Give consideration to outsourcing the coordination of Cultural Centre activities in conjunction with the production of a business plan.
• Extension. Give consideration to extending the Cultural Centre to accommodate increasing visitor demand.
Since title to Uluru - Kata Tjuta National Park has been returned to Nguraritja there has been a substantial increase in the availability of information for visitors. Anangu have participated in, and fully supported a range of programs designed to increase the quality of that information. Anangu and Parks Australia are united in their determination to provide accurate and culturally appropriate information for visitors.
It is evident that visitors and tour guides want additional cultural, scientific and historical information. A large proportion of people who visit the Park come in organised groups and therefore receive most of their information from their tour guides. The Park recognises the important role tour guides have in the dissemination of accurate and culturally appropriate information about the Park.
During the term of the previous Plan, Parks Australia and Mutitjulu Community members were involved in three main interpretive activities at Uluru:
• the development of the Cultural Centre, including the artwork and the cultural display;
• writing and producing interpretive brochures and sheets;
• the development of a signs policy and a signs manual.
Among the interpretive programs introduced during the terms of previous Plans are the following:
• the Liru Walk, conducted by Anangu Tours (an Aboriginal owned enterprise), which gives visitors an opportunity to meet local Anangu and gain information from them first hand.
• new signs for the closure of sacred sites and for the climb;
• a workbook for tour operators;
• the Mala Walk, led by Anangu and Piranpa rangers around part of the base of Uluru;
• the Cultural Centre walk, led by an Anangu ranger;
• seasonal botanical tours, led three times a week by an expert in the area’s natural history.
[There is a true story to be properly understood. We custodians of this place are really happy for you to come and look around our country. This is an Anangu place, with Anangu Law. We custodians are told this Law by others. Our mothers and our grandfathers maintained and held our Law strongly, and held strongly onto our culture, and they lived strong and happy. Here and now we are living together, white people and black people.
We are working together, white and black, equal. Everything at Uluru and Kata Tjuta still runs according to our Law. All the rangers wear a badge on their sleeve, a badge carrying the image of our sacred place. This is as it should be. We are protecting this national park according to our Law. Aboriginal people are training rangers and scientists about the fauna and flora of the Park. They are telling them where to look for animals, where their burrows are, what food they eat, everything. Anangu know all this. So, listen, I am speaking from Tjukurpa now. We learn this Tjukurpa from the old men and women. We listen to them and hold onto our Law really strongly. There is strong and powerful Aboriginal law in this Place.
• ensuring that continuing high-quality and culturally appropriate information is provided to as many visitors as possible
• the need for a strategic framework to guide the development and implementation of all interpretations and their delivery to people who visit the Park
• the need for a cost-effective, integrated approach to the design, development, production and presentation of interpretive materials for the Park
• The need to improve the Junior Ranger Program in conjunction with Mutitjulu school
Aims
• to provide information for all visitors that emphasises the cultural significance of Uluru - Kata Tjuta National Park to Nguraritja, and the Nguraritja role in, and contribution to, joint management
• to provide information on Nguraritja perceptions of appropriate and inappropriate use of the Park by visitors
• to provide information about the Park’s unique flora, fauna, geology, cultural places, archaeology, history and landscape features, whilst maintaining the primacy of Tjukurpa in interpretation and information and highlighting Anangu use of natural resources
• to make available maps and other materials for visitor orientation, within both the Park and the region
• to ensure Nguraritja oversee the development and delivery of information about the Park’s cultural and natural features
• to ensure that there is sufficient precautionary information advising visitors of the importance of planning before engaging in strenuous activities in the Park
• to continue to promote activities that offer alternatives to climbing Uluru and to develop materials that explain the culture- and safety-related reasons for not climbing
• Interpretive plan. Parks Australia will ensure that the preparation of an interpretive plan for the Park is a priority. Such a plan will provide an overall guide to the provision of both ‘static’ and ‘active’ interpretation and orientation in the Park and will include proposed staging and estimated costs. The following matters will be taken into account:
• the participation of Nguraritja in the development and delivery of interpretive information;
• ways of improving information delivery to a larger proportion of visitors;
• the role of the entry station as an information-delivery point;
• the role that Park information sources can play in delivering messages about regional tourism and recreation opportunities;
• improvements to interpretation signage and leaflets for the Uluru base walk and at the base of the climb;
• the production of a low-cost Park guide book;
• a suitable focus on the Park’s values and its status as a World Heritage property;
• an increased focus on information about visitors’ safety;
• the further development of saleable interpretive information on the Park’s history, flora, fauna, landscape and other natural resources;
• developing greater public awareness of the Park’s World Heritage values;
• developing information packages for school groups;
• developing an overall ‘signature’ for interpretive material;
• a coordinated program for interpretive contact between Anangu and Park staff and visitors, including guided walks, demonstrations and potential events for the Park;
• opportunities for the tourism industry and Parks Australia to share financial and staff commitments to develop educational material and disseminate it, provide facilities for training workshops, contribute to monitoring and facilitate research programs.
• Anangu information. In conjunction with Nguraritja, Parks Australia will continue to provide information that emphasises the cultural significance to Nguraritja of the Park, the role and contribution of Nguraritja to joint management, and Nguraritja perceptions of appropriate and inappropriate behaviour in the Park. Such information will expand on three important themes:
• Pukulpa Pitjama Ananguku Ngurakutu - ’Welcome to Aboriginal Land’, which welcomes visitors to the Park and encourages them to understand and appreciate Nguraritja values and perceptions in relation to the Park’s landscape;
• Tjungur ingkula Warkaripai - ’Working Together’, which tells people about joint management and the role of Anangu in the Park. During the term of this Plan particular attention will be given to developing interpretive materials relating to the joint Nguraritja - Piranpa contribution to the ecological knowledge of the Park;
• Nganana Tatintja Wiya - ’We Never Climb’, which tells people about Nguraritja perceptions of appropriate visitor behaviour, activities
and knowledge. Information for self-guided walks and interpretive material will be developed to discourage climbing Uluru and provide visitors with alternatives.
• Cross-cultural awareness. In conjunction with Anangu and the Office for Joint Management, Parks Australia will develop a cross-cultural component for tour operators’ workshops.
• Anangu-guided tours. Tours guided by Anangu should continue to provide for visitors at current levels. During the term of this Plan an increase in the level of this service, linked to full or partial cost recovery, should be investigated.
• Safety information. Safety signs will be erected at various track heads in the Park, including at the base of Uluru and at Kata Tjuta. The aim will be to enhance visitors’ understanding of the need for safety precautions and to generally warn intending walkers or climbers, particularly those who are unfit or ill-equipped, about the dangers associated with these activities, especially in hot weather.
• Restricted access. Further efforts will be made to explain to visitors why access to some areas of the Park is not permitted and why some places have no publicly displayed Tjukurpa interpretations.
• Uluru base walk. The walk around the base of Uluru will be promoted as a good alternative to climbing Uluru. To achieve this, the development of high-quality, engaging interpretation and visitor safety and amenity measures will be a priority. Specific self-guiding interpretive information to detail the modern history of the base walk will be produced to complement the Anangu interpretation.
• Resort visitors centre and tour sales area. The Ayers Rock Resort visitors centre is one of the area’s interpretation facilities, and the Park will coordinate with the Resort to help it make these facilities a complementary display for introduction to the Park. The potential of outlets such as this to contribute to information provision and ticket sales for the Park will be further investigated.
• Fact sheets. People conducting research in the Park will be required to produce brief fact sheets detailing their findings, that are in a suitable form for use in developing interpretive material.
• ‘User pays’. Production costs for Park-produced information brochures will be reviewed by Parks Australia, and the introduction of realistic purchase charges for this material will be considered.
• Internet. An Internet website will be developed to provide extensive information about the full range of Park values.
5.5 Safety and comfort
Tjana kawalirinyi puutjingka munuya putu kulilpai, wirura wanka nyinantjakitjangku.
Visitors’ safety is of particular concern. On average, there is one death in the Park every year and a medical incident every one to two weeks. Nguraritja have a strong sense of responsibility for the safety of visitors to their land. They believe that visitors should respect Tjukurpa by not jeopardising their safety when visiting the Park. Tjukurpa determines the rules of proper behaviour.
In 1999 there was one fatality and 35 other medical emergencies. Each year several people suffering from heat stress and heat stroke are evacuated. Following fatalities in the Park in late 1996 and early 1997 a coronial inquest made recommendations in relation to Parks Australia’s and other interested parties’ responsibility to provide safety information and warning signs.
In 1997 Parks Australia commissioned consultants to assess risks to Park visitors and to prepare a visitor safety plan. The consultant completed their work in September 1997, having prepared the ‘Uluru - Kata Tjuta National Park Visitor Risk Management Assessment and Safety Plan’, whose critical recommendations were implemented in late 1997 and early 1998.
Emergency operations in the Park are a time-consuming and expensive component of overall operations. Excluding the time taken to maintain rescue equipment and the provision of incident-response training, they involve an average of 12.8 staff-hours a week. Further, the safety of Park personnel is put at risk during rescues, particularly during the extreme heat of summer, when temperatures on Uluru and at Kata Tjuta can rise above 50°C.
Occupational health and safety is a critical concern in relation to incident response. In November 1997 Comcare Australia conducted a ‘Planned Workplace Investigation’ of the Park. It reported on Park-related occupational health and safety matters and concluded, ‘The primary area of risk identified was associated with the conduct of Rock rescues.’
Members of the Royal Flying Doctor Service, the Northern Territory Emergency Service, the Northern Territory Police Service and Yulara Fire Service work closely with Parks Australia staff and provide valuable assistance in responding to emergencies. Emergency medical assistance is provided by the Yulara-based ambulance service and helicopters are used in extreme or difficult cases.
Staff training in incident response and first aid is continual, in order to provide a fully trained, adequately staffed and efficient rescue service
while limiting the risks to rescue personnel. Parks Australia will continue its efforts to minimise safety problems in the Park to closely liaise with associated incident-response groups, and to engage in joint training exercises.
• the Director and tourism industry operators have a duty to care for visitors and staff. Nguraritja have a strong sense of personal responsibility for visitors’ safety
• as a primary point of contact with visitors tour operators are ideally placed to deliver primary safety messages
• most visitors come from climates unlike that of Central Australia and are unaware of their endurance limits in extreme heat and low humidity
• safety information for visitors must be well targeted, up to date and accurate
• it is vital to ensure that visitors and tour operators take note of staff safety directions, precautions and safety warnings
• the high cost of staff training and the conduct of rescue operations is a limiting factor
• the occupational health and safety of staff is a prime concern
• the increasing amount of safety infrastructure and signage could eventually have adverse effects on the quality of visitors’ experience
Aims
• to encourage patterns of visitor use that minimise risk and the incidence of safety problems and optimise visitors’ comfort and enjoyment
• to provide a fully trained, adequately staffed and efficient rescue service while limiting the risks to rescue personnel
• to continue to liaise closely with associated incident-response groups and to engage in joint training exercises
• the need for Parks Australia to maintain appropriate standards of emergency response
• Duty of care. The Director of National Parks and Wildlife and tour operators have a duty to care for visitors and staff. Commercial tour operators will continue to be required to take responsibility for the safety of their clients and to be fully familiar with safety precautions and procedures applying in the Park.
• Tour operator permits. Specific conditions relating to safety will continue to be a feature of tour operators’ permits. Where necessary, these conditions may be varied, after consultation with the industry.
• First aid certificates. All tour drivers and guides will, during the term of this Plan, be required to have first aid certificates to the standard specified.
• Access restrictions for safety reasons. The safety of visitors, Park staff and rescue personnel is of the highest importance. The climb or other areas of the Park will be closed when it is felt that conditions may compromise safety. New arrangements that affect access will be introduced in a manner that gives the tourism industry time to adjust. There may be cases when for safety reasons this is not possible.
• Information. Safety information and warning signs provided in the Park will continue to be reviewed and upgraded.
• Radio alarms and water. Emergency radio alarm units will be maintained at Uluru and Kata Tjuta. Additional emergency water supplies will be provided on walks at Kata Tjuta. Ways of improving the compatibility of radio systems used by all parties within the Park will be explored.
• Options of improving compatibility of radio systems used by relevant parties operating in the Park will be investigated.
• Staffing. Appropriate staffing levels will be maintained throughout the term of this Plan, to ensure that enough staff members are available to fully respond to emergencies in conjunction with other local incident-response groups. Park staff will be trained to appropriate standards in rescue and first aid procedures appropriate to their functions and physical capabilities.
• Daily ranger patrols at Kata Tjuta, around the base of Uluru and at the Sunrise and Sunset viewing areas at times of peak daily visitation for quick emergency response, public relations and education, law enforcement and minor repairs and maintenance to Park infrastructure awill continue during the life of this Plan.
• Liaison. Regular liaison in relation to Park safety will continue with the Royal Flying Doctor Service, the Northern Territory Emergency Service, the Northern Territory Police, the Ayers Rock Resort and the Parks and Wildlife Commission of the Northern Territory.
• Audits. Periodic safety audits will be conducted and all interested parties will be involved.
• Cost recovery. Parks Australia will investigate the feasibly of cost recovery for rescue operations.
5.6 Promoting the Park
Promotion of the Park plays an important part in protection of the Park. It helps to build people’s expectations before they visit the Park and it helps gain public support for the Park. It also helps to build a greater appreciation of national parks generally and of the conservation of our natural and cultural heritage.
The task of promoting Uluru - Kata Tjuta as a destination for visitors is shared between all those with an interest in the Park: Nguraritja, Parks Australia, the tourism industry, the Northern Territory Tourist Commission, Tourism Australia, and so on. All these groups have a very important role in ensuring that the Park is accurately portrayed and promoted. Most promotion has helped to develop the Park as a major tourism attraction and helped generate public support for and understanding of Park values. Sometimes, however, advertising and promotion have not been appropriate. If information about the Park is not accurate visitors’ expectations can be at odds with Park values.
Parks Australia and Nguraritja promote the Park through tour operator workshops, books, posters, media releases, off-site displays, and presentations to special-interest groups.
• fostering respect for Anangu culture and the environment of the Park among visitors and the wider community
• ensuring that members of the public are offered accurate information about the management and significance of the Park, despite often controversial public and political views being expressed in the media
• ensuring that pre-visit literature provides potential visitors with realistic expectations of their Park experience
• maintaining and supporting Nguraritja control of cultural material, including film, photographs and publications
• the availability, in private hands, of inappropriate photographs taken before restrictions were introduced in the Park
• the fact that the climb is often emphasised as the principal attraction for overseas visitors
• the names Uluru and Kata-Tjuta are relatively unknown overseas
Aims
• to continue to promote understanding of Tjukurpa and its role in the life of Nguraritja and the Park
• to increase understanding of and promote the joint management philosophy of the Park
• to continue to promote the World Heritage status of the Park and the significance of World Heritage listing for natural and cultural landscape values
• Guidelines. Parks Australia will continue to work with the Board of Management, the Office for Joint Management, Nguraritja and the tourism industry to update and manage guidelines on appropriate images and messages for promoting the Park. The guidelines will continue to specifically focus on promotion of the Park as a cultural landscape, the management philosophy, and promotion of the Park’s World Heritage values. They will also deal with the use of information and images, to ensure that the information and images accurately reflect the true nature of the Park.
• Interpretation Plan. The Interpretation plan will be developed and implemented.
• Inappropr iate images. Photo libraries will be written to and encouraged to withdraw inappropriate images of the Park. Publishers will be contacted and encouraged to replace inappropriate images in any further printings of existing books.
• Tour operators’ brochures. Tour companies will continue to be required to supply to Parks Australia copies of their brochures and other advertising material. They will be encouraged to develop flexible itineraries that can take account of changing circumstances. Application procedures for specific tourism opportunities in the Park will include an assessment of whether the promotion material is consistent with Park values.
• Tour operators will be asked to state the Anangu position on climbing in their brochures.
• There will be an audit of all existing promotional material, to streamline and provide consistency in the main messages.
• Olympic marketing. The Sydney 2000 Olympic Games present a unique opportunity to promote the Park’s values and images The agreement between SOCOG Parks Australia and the Central Land Council includes provisions which seek to ensure the Park’s values and images are appropriately and accurately projected.
• Memorandum of Understanding. Photographic images and promotional material developed or held by Parks Australia will be subject to a ‘Memorandum of Understanding’. This MOU, concerning the
protection and control of Anangu Cultural Material will be drafted by Office for Joint Management and Parks Australia.
• Customer ser vice. Parks Australia and Park staff will continue to liaise with people and organisations to further appropriately promote the Park. In consultation with the Board of Management, Parks Australia will implement the Environment Australia service charter, to guide Park staff in dealing with requests for information and all customer services.
5.7 Commercial operations
Commercial tour operators have an important part to play in helping visitors appropriately use, appreciate and enjoy Uluru - Kata Tjuta National Park. Well-run commercial tours also help Parks Australia manage visitors in the Park and enhance visitors’ experience. Tour operators bring 60 per cent of visitors to the Park.
All commercial operations in the Park require a permit from the Director. The Director may impose conditions on any permit issued and may also withdraw permission if an operator does not meet the conditions imposed.
The permit system ensures that safety standards are adhered to and protects the values of Uluru - Kata Tjuta National Park. Commercial operations which have been permitted in the Park include:
• cultural tours;
• coach, taxi, motorbike and limousine tours;
• scenic flights;
• the sale of Anangu arts and crafts;
• the sale of refreshments and souvenirs at the Cultural Centre;
• Community enterprises such as the Ininti store and the Mutitjulu garage;
• commercial filming, photography and artists’ operations;
In the past Parks Australia has applied conditions to a number of permits for commercial operations issued under the National Parks and Wildlife Regulations.
As previously noted, Nguraritja expect to benefit from their land being managed as a national park and from the use of their land for tourism; they seek direct employment in the Park and in the development of tourism ventures. At present the main Anangu-owned commercial ventures operating in the Park include the Ininti store and kiosk, the Maruku arts and crafts outlet, Anangu Tours, the Mutitjulu garage and Walkatjara Arts. Section 9(1)(k) of the Lease refers to Parks Australia support for such Anangu owned activities.
Vehicle-based tour operators must comply with permit conditions related to insurance, indemnity, provision of visitor statistics, fee payment, access, the quality of information provided to visitors, and the safety of and duty to care for visitors.
Scenic flights are operated by fixed-wing aircraft from Connellan airport and by helicopter from helipads at the airport and Yulara. After concern was expressed about air safety and the impact on visitors and Park residents of noise from low-level flights over the Mutitjulu Community residential area and the Park, the ‘Fly Neighbourly’ Agreement was developed and implemented in 1997. It is incorporated in the Ayers Rock Resort tour operator agreement. The Agreement lays out a flight path and includes the following:
• prescribed minimum heights varying from 4000 to 4500 feet above sea level;
• not flying over environmentally sensitive areas, including Uluru and Kata Tjuta;
• a minimum of 4 kilometres’ lateral distance from Mutitjulu Community;
• a minimum of 2 kilometres’ lateral distance from Uluru;
• a minimum of 1 kilometre’s lateral distance to the west from the Kata Tjuta sunset area;
• a minimum of 1 kilometre’s lateral distance from areas of high visitation, such as the Cultural Centre, the sunset viewing areas, picnic areas and other viewing areas.
The image of Uluru receives much exposure through books, postcards, posters, tea towels, ash trays, and all manner of other items. Nguraritja consider that some of these uses are inappropriate for cultural reasons.
The Board of Management approved guidelines for filming and photography soon after it was formed. The current guidelines have been in operation since 1988 and were developed to maintain an appropriate national and international image for the Park and to comply with the wishes and culture of Nguraritja.
Minga tjutatjara kulini. Palyanula ‘rules’ tjuta puturu mantjintjatjara. Ngura Tjukuritja tjutakula wariringanyi. Mukuringanyila ranger tjutangku minga atunymanykuntjaku.
At present the Information, Education and Interpretation Section of Parks Australia, in conjunction with the Office for Joint Management, manages film and photography proposals and permits. Future consideration maybe given by the Board to this work being contracted out.
• maintaining Park values whilst enhancing visitors’ experience through the provision of high-quality commercial tours
• Nguraritja perception that they do not benefit sufficiently from commercial tourism operations on their land
• The relatively low benefits which flow to Nuguraritja from commercial tourism operations dependant on the Park
• Anangu owned participation in tourism and other enterprises
• flexible and responsive training and employment opportunities for Anangu in private enterprise, particularly young people
• visitors expressing disappointment in surveys because they did not see or have contact with Anangu
• adherence to the ‘Fly Neighbourly’ Agreement for scenic and other commercial flights over the Park
• Nguraritja consider that some uses of the image of Uluru in the public domain are inappropriate for cultural reasons
• the presence in the public and commercial domain of offensive or disturbing photographs and images of Uluru, many of which were taken before the Park became Aboriginal land and controls existed. Images such as these should not be used by production companies in the general marketplace
• the tourism industry’s need for adequate lead time before the implementation of new arrangements
Aims
• to increase Anangu employment opportunities in tourism, publishing, merchandise and the general service industry
• to ensure that Community and commercial enterprises incorporate good management practices, enhance visitors’ experience, and operate in accordance with Park values
• to use commercial operators’ permits to improve on the quality of environmental, cultural and safety information provided to tour operators and to ensure that tour operators make appropriate arrangements for visitor safety
• to ensure that the auxiliary services and equipment provided by tour operators (such as rubbish removal and mobile barbeques and furniture) and activities engaged in by tour operators whilst in the Park are in accordance with Park values
• in relation to scenic flights, to ensure adherence to the air space guidelines in the ‘Fly Neighbourly’ Agreement
• to ensure that film crews and photographers do not inadvertently cause
images to be published that contravene Anangu restrictions on the dissemination of information
• to ensure that the best possible image of Uluru - Kata Tjuta as a World Heritage national park and major tourist attraction is presented in the media and that the use of images in inappropriate contexts is prevented
• to encourage the sale of artefacts produced by Anangu
• to encourage the development of Anangu owned and operated commercial enterprises
• To ensure protection of all indigenous intellectual and cultural property rights including copyright for all merchandise sold in the Park
• To ensure all merchandise appropriately promotes Aboriginal culture and the specific cultural and environmental values of the Park
• Appropriate use. Commercial operations in the Park will be approved only if they accord with the Board of Management’s policy in relation to appropriate use of the Park.
• Knowledge and respect for Anangu culture will be a prerequisite for any tender with cultural or social impacts or implications.
• Anangu employment. A standard clause will be inserted in all tender specifications noting preference will be given to tenders that provide for the engagement and training of Anangu staff.
• The profile of sustainable employment for Anangu and Anangu business opportunities will be raised through appropriate mechanisms such as the Commercial Tour operators workshop.
• Young Anangu will be consulted about their training and employment aspirations, and all interested parties will act on the results of this consultation.
• Advertising. There will continue to be strong emphasis on maintaining the Park’s values. Apart from high-quality, appropriate advertising by Anangu enterprises based in the Park, there will generally be no sponsorship, soliciting or advertising in the Park.
• Permits and accreditation. The Park will develop its own system of compulsory tour-operator accreditation and dedicated modules as part of the Territory-wide approach. Such a system has a high priority and will be introduced early in the term of this Plan.
• Parks Australia will continue its tour operator workshops. These will be used to encourage and assist with the dissemination of relevant and accurate information. There will be greater Anangu contribution to the
provision of training. The workshops may be held more often, be customised, provide for advanced courses and tour operator accreditation, and be provided on a user-pays basis.
• Parks Australia will review the tour operator permit system every few years. It will consider the following:
• Anangu control and management;
• Anangu opportunities for raising revenue;
• accuracy of cultural information;
• how best to implement compulsory accreditation;
• quality assurance and monitoring;
• imagery and marketing of the Park;
• control over access to the Park and sections of the Park;
• control over how the Park is used and the conditions of use;
• procedures for withdrawal of permits; and
• safety requirements.
• As a condition of a permit to operate in the Park, tour operators may be required to negotiate targets for Anangu employment and training in conjunction with suitable support strategies and resources.
• A system of monitoring compliance with permit conditions will be introduced during the term of this Plan.
• Vehicle-based tours. Conditions consistent with the primary aim of maintaining and enhancing visitors’ experience and Park values may be placed on vehicles entering the Park. This could include, for example, measures designed to reduce noise pollution. In addition, the use of generators in the Park will be restricted to use for Community power generation and temporary use for construction and Park-management purposes.
• Scenic flights. All flights in air space over the Park will be required to follow approved flight paths, in keeping with the ‘Fly Neighbourly’ Agreement.
• Souvenir production. Only souvenirs promoting appropriate Park values will be permitted for sale within the Park. Parks Australia and the Board of Management have no legal control over Australia-wide Uluru related souvenir production, and it would be unrealistic to expect that inappropriate use can be prevented. Parks Australia, the Office for Joint Management and the Board will, however, liaise with souvenir-producing and tourism groups to educate them about the cultural reasons for producing and selling suitable souvenirs.
• Commercial film and photography. Parks Australia will review the current film and photography permit system with a view to introducing improved guidelines to:
• ensure payment of Nguraritja for the use of their intellectual and cultural property and to protect their property rights;
• enhance protection of Tjukurpa values;
• ensure effective promotion of the Park’s cultural and environmental values;
• streamline procedures and shorten application-processing times;
• consider the system with reference to writers and print journalists;
• increase Anangu participation in administration and implementation. Until this review is completed the existing guidelines will be maintained.
• Events of the day. At present television, newspaper and radio reporting relating to events of the day requires a permit only if it involves entering the Mutitjulu Community. News reporters receive a briefing and orientation and must comply with filming and photography guidelines. For reasons related to staff resourcing and the ability to meet film crews’ requirements, the Park Manager may set limits on the number of crews, photographers and sound recordists that are permitted in the Park at any time. Where it is proposed to film or photograph within the Mutitjulu Community, approval must be obtained from the Mutitjulu Community Governing Committee.
• Olympic torch relay. The conduct of the Torch Relay is subject to a detailed agreement between the Director, the Land Trust, Mutitjulu Community, the Central Land Council and SOCOG. Permits will be required to carry out commercial filming and photography of the Sydney 2000 Olympic torch relay in the Park (including for news of the day purposes). Unless otherwise approved by the Board, permits will only be granted to the Sydney Organising Commitee for the Olympic Games (SOCOG) and its media contingent (being those crews and individuals, not exceeding a total of 35 persons, accompanying the Olympic flame at SOCOG’s invitation).
• Fees. Fees for commercial filming and photography apply. At the discretion of the Park Manager, however, fee exemptions may be made for non-profit organisations, for projects that directly benefit Park management objectives, and generally for projects sponsored by the Northern Territory Tourist Commission and Tourism Australia.
• Commercial artists. Commercial artists will generally be required to follow the guidelines applicable to commercial filming and photography.
• Office for Joint Management. There will be a review of the Office for Joint Management to assess opportunities, options and capacity to undertake an expanded role in the provision of services in publishing,
film making, tourism marketing and the negotiating of intellectual and cultural property rights matters.
5.8 Fees for Park use
Fees for Park use are charged in line with the user-pays principle endorsed by the Commonwealth Government. Under the Lease a portion of the fees are paid to Nguraritja as part of the rent.
Although such fees provide essential revenue for the Park, they do not alone supply sufficient funding to cover all aspects of Park management. The fees collected under the Act and the Lease agreement are visitors’ entrance fees, commercial operators’ permit fees, and any other fees for other activities conducted in the Park.
People over 16 years of age currently pay $15 to enter the Park. A $60 Territorian pass is also available; it provides 12 months’ access to Uluru - Kata Tjuta and Kakadu National Parks for people in a privately registered vehicle displaying the pass. Through traffic to and from Docker River and Western Australia does not pay to cross the Park, providing Park facilities are not used.
The Commonwealth Minister for the Environment and Heritage approves the fee structure for the Park following advice provided by Parks Australia North and the Board of Management. In January 1997 the entry fee for people over 16 years old increased from $10 to $15, but the additional revenue provided has been offset by a general tightening of the budget for Parks Australia. Park fees have progressively met a larger portion of the running expenses of the Park, rising from 57 per cent in 1995-96 to 86 per cent in 1997-98. When capital improvements are added, the contribution to total Park expenditure rose from 40 per cent in 1995-96 to an estimated 70 per cent in 1997-98.
The number of visitors to the Park has increased almost threefold during the first 10 years of joint management. There is scope for managing increasing visitation through expanding the application of the ‘user-pays’ principle.
• loss of revenue because some visitors leaving the Park transfer their unexpired tickets to new visitors or avoid purchasing tickets in the first instance. It is illegal to recycle tickets
• the trends in Commonwealth government funding for the operating budget of the Park
• the Mutitjulu Community’s concern about the lack of direct financial support
• investigation and implementation of the user-pays principle with respect to services provided within the Park
• effective consultation with the tourism industry with respect to visitor-oriented cost-recovery initiatives
• the need for visitors to understand and accept the ‘user-pays’ principle
• the cost associated with operation of the Park entry station and fee collection
Aims
• to charge and collect fees in accordance with the relevant legislation and the Lease
• to make the system for collecting entrance and other fees more efficient
• to prevent entry fee evasion and ticket fraud
• to further investigate systems of cost recovery for services rendered and, if appropriate, to implement such systems
• to ensure that funding for the Park is sufficient to meet legislative and Lease requirements
• Review. The system of fees and ticket sales will be reviewed early in the term of the Plan. This will include examining the following:
• ticket ‘packaging’;
• operation of the entry station;
• auditing tour operators’ ticket invoicing;
• the length of time for which a ticket is valid;
• the cost of tickets;
• ways of minimising fee avoidance;
• possible use of a levy on fees and tickets for Community development and natural resource management.
• Consultation. Parks Australia will consult Anangu and appropriate agencies and interest groups with a view to improving cost-recovery measures.
• ‘User pays’. A cost-recovery plan for services provided by Parks Australia will be investigated and implemented as appropriate.
• A review will be undertaken of fees charged for the granting of permits
to ensure they adequately cover administration costs, permit conditions, and, whether revenue from tour operator permits could be used to improve services to tour operators.
5.9 Monitoring for visitor management
Monitoring for visitor management involves the regular and systematic collection of data about visitors in order to gain information about Park use. A standard approach to monitoring visitors, using the same methods, will allow trends in Park use to be discerned. The Park is the focus for commercial concerns, particularly the Ayers Rock Resort, the airport and tour operators. These parties work with the Park and all would benefit from a better picture of Park use. The commercial operators already collect many statistics for their own purposes.
The last major Uluru visitor survey, commissioned by the Australian National Parks and Wildlife Service, was completed in 1992.
It is anticipated that a monitoring program will provide information of use to management in a range of areas including facility provision, strategic planning and visitor satisfaction.
• Anangu employment opportunities in the collection of data on visitors
• visitors’ impacts on the Park’s environmental and cultural values
• obtaining regular reliable data for management purposes
Aims
• to ensure regular, appropriate data collection at specific periods to highlight fluctuations or changing needs over time and to provide qualitative information for measuring visitor satisfaction
• to ensure that data collection is integrated into the regional and Territory-wide contexts
• Visitor-monitoring program. In consultation with the tourism industry, the Tourism Consultative Committee and the Scientific Consultative Committee Parks Australia will develop a comprehensive visitor-monitoring program. This program will develop indicators and methodologies to responsibly monitor the impact of visitation upon the ecological and cultural values of the Park in accordance with best practice principles.
• Existing data collections. As much as possible, the monitoring program should be structured around data already being collected for other purposes; for example, ticket numbers, people counters, tour operators’ information, and Ayers Rock Resort statistics.
• Report production. Every three years a comprehensive report on the monitoring findings should be compiled and produced for distribution.
• Once the monitoring system is in operation, advice about current results will be delivered quarterly to the Tourism Consultative Committee.
• Other impacts. The monitoring program will also encompass monitoring the environmental, social, cultural and economic impacts of visitors in the Park.
• Sites considered by Park management to be damaged by excessive visitor use will be assessed and may be closed to the public.
• Monitoring tour operators. Tour operators’ compliance with standards will be monitored.
• Ticket evasion. Visitors will be checked to ensure that they possess valid entry tickets.
[This was the way of life in the past. Everything was clear and ordered and everyone understood their roles and responsibilities for living well. There is always a separate camp for the women preparing food, and a different place for the men preparing meat.
The young men make a separate camp as they learn the things they need to as men. Their food is sent to them by their mothers and fathers. There is a rockhole from which water is brought back to camp to drink and to use in preparing food.
The Mutitjulu Community lies within Uluru -Kata Tjuta National Park, 1.5km from the eastern side of Uluru. The population in excess of 400 is comprised of approximately 300 Anangu and 100 non-Anangu. Mutitjulu’s position is unique: not only do the residents have to deal with the hardships imposed by remoteness, but also with their location in the most readily identified landscape in Australia. Consequently large numbers of visitors also impose a complex set of social and cultural pressures.
The health and well-being of Mutitjulu’s Anangu residents is central to the maintenance of the Park’s World Heritage cultural values. This chapter describes the ways the Community has evolved and the various legislative regimes it operates under. It also reviews recent planning initiatives, and outlines a direction for the participatory development of a culturally and environmentally sustainable Community.
6.1 Community management
The Mutitjulu Community Inc. is an an incorporated association, with a Governing Committee which operates as a community council. The Governing Committee has a number of local government responsibilites, these include housing, environmental health, cemetery and community administration. Due to the Community’s location and history, and the effects of tourism, the duties and responsibilities of the Governing Committee are unlike other Aboriginal community councils.
The Mutitjulu community is located within the Park. While the land tenure of the community is the same as for the rest of the Park, the Act and Regulations allow the Director to make areas available in a park for use by the traditional Aboriginal owners, or people approved by them. Under the terms of the Lease, Mutitjulu Community Inc. is the relevant Aboriginal Association.
The Lease requires the Director to fund the Relevant Aboriginal Association for the purpose of providing a community liaison officer in accordance with a budget approved by the Board. The Mutitjulu Community Inc. role in the joint management structure of the Park is operationalised by employing a Joint Management Coordinator (previously the Community Liaison Officer) and Assistant Coordinator/Board Secretary.
In recent years Mutitjulu Community Inc. has been considering changes to the basis on which it performs local government functions. At present it is an incorporated association that receives limited funding on an ad hoc basis from different funding agencies (including the Director) to perform some of these functions. Possible alternatives or additions to the current arrangements are:
• develop as a township under section 8C of the National Parks and Wildlife Conservation Act 1975 [section 338 of the Environment Protection and Biodiversity Conservation Act 1999];
• incorporation as an Aboriginal Council under the Aboriginal Councils and Associations Act 1976;
• incorporation as a Community Government Council under the Local Government Act (NT);
• the Director may grant a sub-lease to the Mutitjulu Community for community purposes if requested by Mutitjulu Community Inc;
• negotiation of unique administrative arrangements (such as a Memorandum of Understanding) between Mutitjulu Community Inc. and the relevant agencies.
Under the provisions of the Liquor Act (NT) and consistent with the actions of other Central Australian Aboriginal Communities, Nguraritja resident in the Park had the Mutitjulu Community area declared a dry area early in 1987. The purpose of this was to prohibit alcohol in the designated area.
• without adequate financial resources, Mutitjulu Community Inc. cannot perform the functions described in the Lease and keep joint management working to the standard of world best practice
• the Directors’ lease obligations also apply in the Mutitjulu Community area
• financial arrangements that give Anangu a strong, independent voice are needed. Historically, budgets have been prepared and administered largely by Parks Australia. At a workshop in September 1997 it was agreed that future Park budgets would be developed by Parks Australia, in collaboration with the Office for Joint Management
• Mutitjulu Community Inc. carries out many local government functions as if it had tenure similar to that of other NT communities
• maintaining compliance with the alcohol ‘dry area’ restriction
Aims
• to ensure that Mutitjulu Community Inc. is sufficiently resourced so it is able to perform all of its local government, community management, and joint management functions, in a manner which is consistent with the Lease, community aspirations and Tjukurpa principles
• to urgently resolve outstanding issues about alternative forms of community governance and management
• to minimise the destructive effects of excessive alcohol consumption by supporting Anangu wishes in relation to restrictions on the availability of alcohol
• To improve arrangements which are aimed at ensuring compliance with the restrictions on the availability of alcohol
• Budget preparation. In order to empower Nguraritja in the process of joint management, the Park will be managed according to budgets prepared by Parks Australia in conjunction with the Office for Joint Management and approved by the Board of Management.
• Self-management. Parks Australia will support Mutitjulu Community Inc. in the process of achieving its community aspirations.
• The Joint Management partners will engage an independent facilitator to develop the Mutitjulu management options.
• During the life of this Plan the Mutitjulu Community may continue to develop as a regional centre. Comprehensive negotiations will be required between the Mutitjulu Community Inc. Nguraritja, the Commonwealth, and Northern Territory Governments about providing adequate levels of Government funds to support the regional role.
• The alcohol ‘dry area’ restrictions of the Mutitjulu Community will be reviewed during the term of this Plan, and a range of programs to address compliance difficulties will be implemented.
6.2 Community services, infrastructure and maintenance
The Director currently provides all essential services to Mutitjulu Community. Other Aboriginal communities in the Northern Territory have their essential services supplied and maintained by the Northern Territory Power and Water Authority and other appropriate agencies.
In September 1997 the Board of Management agreed that the introduction of ‘user pays power should be investigated and implemented as a cost recovery measure by March 2001’. Parks Australia was instructed to start
negotiating with Mutitjulu Community Inc. through the Office for Joint Management about user-pays electricity for all residents.
The Board also discussed the role of Parks Australia in the provision, maintenance and repair of essential services in the Community and the need to shift the financial responsibility for essential services from Parks Australia to the Northern Territory Government as is normal in other NT communities.
During the term of the previous Plan, Parks Australia upgraded the capacity of high-voltage electrical reticulation in response to the increased demand from the growing population of the Community. The upgrade was to the maximum capacity for the current power-generation installation and the sewage lagoons and pump stations underwent major reconstruction works.
The Board supported in principle the establishment of sub-leases between Parks Australia and the tenants of Park premises. These leases would involve the introduction of a ‘user-pays’ system for services. The leases would be negotiated through the Central Land Council and the Office for Joint Management.
• facilities and essential services are matters in which the Community’s future position needs to be clarified. Currently Mutitjulu Community Inc. is funded to provide and maintain administrative services, environmental health, recreation and housing
• the Director has a responsibility to ensure obligations under the Lease are being met including all legislative requirements, and building standards
• negotiation of procedures for normalisation of essential service provision, repairs, maintenance and cost recovery
• the need for Anangu to be given clear information about the implications of Parks Australia no longer providing essential services at Mutitjulu
• in the transition to ‘user pays’, additional costs will be incurred by Mutitjulu Community Inc. for which it is not funded
• transferred responsibilities for service delivery allows Parks Australia to redirect resources and funding into management of the Park.
• buildings and infrastructure in the Community are legally part of the land on which they are built and are therefore technically leased to the Director with the land itself. However Mutitjulu Community Inc. takes responsibility for the management and maintenance of the communities housing and buildings
Aims
• to improve the provision of services to the residents of Mutitjulu Community
• to negotiate the provision of essential services to Mutitjulu Community residents by another agency in a manner consistent with self determination and self management
• to access funding from the Aboriginal and Torres Strait Islander Commission and the Northern Territory Government in a way that prevents any reduction in overall funding to Mutitjulu Community Inc.
• Provision of essential ser vices. Parks Australia, the Office for Joint Management, and Mutitjulu Community Inc. jointly formulate a Community Development and management strategy which incorporates:
• staged consultations and negotiations between the parties about the provision of all essential services to Mutitjulu Community residents. The Central Land Council must be involved in the process;
• a participatory planning process which must include a comprehensive community awareness programme;
• consultation with the Northern Territory Government and its agencies, so far as relevant to their functions and responsibilities;
• options regarding provisions of environmentally sustainable infrastructure, particularly the power supply, and user-pays arrangements;
• an environmental and social impact assessment of the limits to growth at Mutitjulu;
• adequate funding to complete the project within a twelvemonth timeframe from the commencement of the Plan.
• Parks Australia properties within the Community. Parks Australia will continue to maintain those properties in the Community for which it is responsible, including the premises of the Office for Joint Management, the two duplexes for staff trainees, one staff house, and the Office for Joint Management Coordinator’s three-bedroom house.
• Rubbish disposal. The rubbish dump will be maintained to comply with Territory Health Services guidelines to prevent mosquito and fly breeding sites.
6.3 Housing and other buildings
Mutitjulu Community Inc. has in the past sought funds from Anangu agencies and government for the construction of housing and other buildings. SLAP - the Mutitjulu Community Serviced Land Availability Plan - will be used as a planning guide for expansion of housing stock, infrastructure and other buildings.
The Community building program provides for the construction of housing, other buildings and their repair and maintenance. Essential services and all housing must be covered by protocols that guarantee all construction is based on environmentally sustainable and passive solar principles. The Community currently houses in excess of 300 Anangu in 23 serviceable houses. Housing stock is generally in reasonable condition, and there is a need for housing upgrades, new houses and associated buildings. The demand for additional serviced land over the life of the plan is increasing, as is the need for a strategic planning approach to resolving housing related problems. The Community operates a housing rental collection system.
In 1997-98 the Mutitjulu Adult Education building was built. Parks Australia contributed funding for construction and connection to essential services.
• construction of new buildings creates additional loads for essential services particularly if those buildings are energy inefficient
• evaluation of housing performance, and regular repair and maintenance of all housing and infrastructure
• monitoring and maintenance of the Community’s and Park’s environmental and cultural values in relation to Community development
Aims
• to ensure the Director fulfils his obligations for community development, consistent with the protection and promotion of the Park’s values
• to plan, design and construct buildings in a way that provides for the protection of the Park’s values, and the development and maintenance of sustainable and healthy principles developed in the Housing for Health project
• Construction requirements. Preference is to be given to construction materials and designs that minimise the cost of continuing maintenance.
• Environmental and cultural considerations are to be taken into account in all construction at Mutitjulu.
• Environmentally sustainable energy sources are to be used where feasible. In particular, gas instead of electricity should be used for heating and cooking so as not to over-burden the available power supply.
• Budgeting. Ensure that planning and budgeting for new Community houses allows for the cost of continuing maintenance.
6.4 Homelands development
The success of the Land Rights Act in acquiring large amounts of land for Aboriginal people has led to a significant movement of traditional landowners back onto their traditional land. This is sometimes referred to the homelands movement.
Homelands, or outstations, are small communities usually consisting of one or two family groups built on land of particular traditional significance to that family. Some homelands are occupied full time, while others are occupied on an occasional or temporary basis. Homeland development is a high priority for Nguraritja living in the Park.
Factors influencing the extent of development and occupancy of homelands include: location (distance from existing communities and facilities), access (existence and condition of roads, availability of vehicles etc), and the availability of water and shelter.
There are several homelands associated with Mutitjulu Community and these are located outside the Park on the Petermann and Katiti Aboriginal Land Trusts. Some of these have potential for small scale tourism enterprise development.
A healthy and vigorous homelands movement at Mutitjulu Community has several benefits for joint management and the Park. These include:
• Aboriginal people actively living on, looking after their land, Tjukurpa, and sites, passing on traditional knowledge to children;
• greater opportunities for non-Aboriginal ranger staff to visit, learn from and interact with Aboriginal people ‘in their element’;
• decentralisation of population, relieving some of the pressures on infrastructure in Mutitjulu Community, ie housing, power, water;
• healthy and happy community members, away from some of the pressures and social problems of Mutitjulu.
While the work of joint management must focus primarily on the Park, there exist several opportunities to benefit the park through support of homelands. One example of this occurred in the past, with Parks Australia supporting homeland development by providing assistance with infrastructure such as ‘in kind’ payment for extraction of gravel from Aboriginal land.
• While some basic infrastructure exists, lack of funding over recent years has stalled development of homelands around Uluru - Kata Tjuta National Park
Aim
• To support and encourage development and occupancy of homelands in ways consistent with cultural and ecological sustainability and within jurisdictional capability
Action
• The joint management partners will cooperate with the management of adjacent homelands within legal and budgetary constraints.