It is important to engage the key political players from the start of the planning process rather than wait until nearer the completion of any such process. Soon after the start of the GBR planning process, a formal ‘Leader’s Guide’ was delivered to all State and federal politicians along the GBR coast and wherever possible, personal briefings were undertaken by senior GBRMPA staff. This helped ensure all politicians had the correct information, had extra materials to give to their constituents and had a contact within GBRMPA if further information was required. While some decision-makers would prefer all planning decisions to be consensus-based, or achieve a ‘win-win’ for all concerned, neither consensus nor ‘win-wins’ are achievable goals for stakeholder processes dealing with issues of such magnitude and complexity as most MPA planning processes. In the GBR, it was important to explain to politicians early in the planning process that compromises were the expected outcomes. At the end of the GBR rezoning, no one stakeholder group felt they got exactly what they wanted; but every group knew they had ample opportunities to become engaged and to provide input – and most understood the compromises all sectors had made.

Throughout the GBR planning program, targeted educational material was prepared and widely distributed. For example the map of the 70 bioregions across the GBR was a key foundational document upon which a lot of subsequent public engagement was based. The preparation of Technical Information Sheets (see below) helped to explain concepts like ‘biodiversity’ in layman’s terms as many people did not understand what it was nor its importance. Similarly trying to explain the importance of ‘connectivity’ in the marine environment was greatly enhanced by a poster entitled ‘Crossing the Blue Highway’ (see Photos below). It used a combination of digital art, photos and words to explain the importance of connectivity between the land and the sea, and within habitats of the GBR - this reinforced the need for the ‘representative’ approach to the zoning. Different stakeholder groups have differing interests so the communication messages were appropriately tailored by experts who understood the sectors e.g. what was presented to fishers was different to how a very similar message was presented to researchers or to politicians.

The GBR legislation mandates 2 formal phases of public engagement when planning – one seeking input prior to developing a draft plan, and the second to provide comments on that draft plan. However previous planning processes in the GBR demonstrated that public engagement was more effective if undertaken throughout the process. This included the preparation of various brochures, technical information sheets (some tailored for different target audiences), periodic updates (see Resources below) and graphics explaining concepts like connectivity. Throughout the planning process (1999-2003) the public were engaged by a variety of methods e.g. newspapers, radio, TV, the website (refer Resources below). Planners knew a revised plan was needed. However, communication experts pointed out that the wider public did not understand why a new zoning plan was needed when there already was an existing plan. Rather than progressing the new draft plan, communications experts advised the planners to pull back for several months to conduct an awareness campaign called “Under Pressure”. Once the public were more aware of the problems facing the GBR, they were more accepting of the need for a new plan but also understood they could have their say.

During any planning exercise, some key messages or information may become deliberately (or inadvertently) distorted or mis-represented by those who are opposed to the process. Many people believe everything they hear (without always checking the accuracy) and are also suspicious of any changes proposed by bureaucrats. Every time these concerns are passed onto others, they are embellished, leading to distortions from the original facts. Furthermore some stakeholders selectively quote from ‘research’ when it suits their concerns whilst ignoring evidence with a contrary position. Some stakeholders have unrealistic expectations and do not understand what is possible, or impossible, as part of the planning process. Unless this misinformation is addressed, the public may only hear the distorted or unclear messages which may then become reinforced by others with similar perspectives. Such misinformation, and the consequent fear and uncertainty, resulted in some of the largest public meetings during the GBR planning process. To counter some of these problems and address unrealistic expectations, GBRMPA produced a fact sheet titled ‘Correcting the mis-information’ - this was widely distributed, especially at large public meetings.

It should not be assumed that all those who have an interest in an area or the planning process will necessarily provide a written submission. Around 1 million people live adjacent to the GBR and many millions of people elsewhere in Australia and internationally are concerned for the future of the GBR. However the 31,600 written public submissions represented only a small proportion of all those concerned citizens (noting many individual submissions were prepared on behalf of groups representing many hundreds of members). At many public events during the planning or in the media, it was a small ‘noisy minority’ who dominated the discussions. Different techniques were therefore applied to determine the views of the ‘silent majority’, many of whom were interested or concerned but did not bother to write a public submission. This included commissioning telephone polling of major population centres elsewhere in Australia to determine the ‘real’ level of the wider public understanding and support. In addition, community attitudes and awareness were monitored through public surveys. These showed that many stakeholders were misinformed about the key issues/pressures and what could, or should, be done to address their concerns.

A requirement to a community led participatory monitoring program is the prior development of strong relationship with the community leaders. The nature, objectives and methods to be used were discussed and agreed with the community before its implementation. Awareness on the lack of and the great value of fisheries landing data was clearly established within the community at the onset of the monitoring program.

Over 25 communities in three countries, involving over 2000 fishers, have participated actively in this monitoring process for over 4 years. Young people were selected and trained in monitoring techniques and data compilation to identify species, measure length and weight and describe the gear used, capture location, and other variables.