Developing the north: learning from the past to guide future plans and policies
Andrew Ash A C and Ian Watson B
+ Author Affiliations
- Author Affiliations
A CSIRO Agriculture and Food, 306 Carmody Road, St Lucia, Qld 4067, Australia.
B CSIRO Agriculture and Food, PMB Aitkenvale, Townsville, Qld, 4814, Australia.
C Corresponding author. Email: andrew.ash@csiro.au
The Rangeland Journal 40(4) 301-314 https://doi.org/10.1071/RJ18034
Submitted: 19 March 2018 Accepted: 4 July 2018 Published: 28 August 2018
Journal Compilation © Australian Rangeland Society 2018 Open Access CC BY-NC-ND
Abstract
The development of northern Australia has been a policy ambition for over a century and the desire to do so continues unabated. Attempts to develop the north, especially for more intensive forms of agriculture are not new. In this paper we explore past agricultural developments, including some that persist today and those that have failed, to determine critical factors in success or failure. This was done with the aim of identifying where most effort should focus in supporting contemporary agricultural developments. Although climatic and environmental constraints, including pests and diseases, remain a challenge for agricultural development in these largely tropical rangelands, it is mainly factors associated with finances and investment planning, land tenure and property rights, management, skills, and supply chains, which provide the critical challenges. In particular, the desire to scale-up too rapidly and the associated failure to invest sufficient time and resources in management to learn how to develop appropriate farming systems that are sustainable and economically viable is a recurrent theme through the case study assessment. Scaling up in a more measured way, with a staged approach to the investment in physical capital, should better allow for the inevitable set-backs and the unexpected costs in developing tropical rangelands for agriculture. There are two notable differences from the historical mandate to develop. First is the acknowledgement that development should not disadvantage Indigenous people, that Indigenous people have strong interests and rights in land and water resources and that these resources will be deployed to further Indigenous economic development. Second, assessing environmental impacts of more intensive development is more rigorous than in the past and the resources and timeframes required for these processes are often underestimated.
Additional keywords: development, economics, intensive agriculture, management.
References
Agricultural Section (1954). Annual report. Northern Territory Administration, Darwin.Ash, A. J., McIvor, J. G., Mott, J. J., and Andrew, M. H. (1997). Building grass castles: integrating ecology and management of Australia’s tropical tallgrass rangelands. The Rangeland Journal 19, 123–144.
| Building grass castles: integrating ecology and management of Australia’s tropical tallgrass rangelands.Crossref | GoogleScholarGoogle Scholar |
Ash, A., Gleeson, T., Cui, H., Hall, M., Heyhoe, E., Higgins, A., Hopwood, G., MacLeod, N., Paini, D., Pant, H., Poulton, P., Prestwidge, D., Webster, T., and Wilson, P. (2014). Northern Australia: Food and Fibre Supply Chains Study Project report. CSIRO and ABARES, Australia.
Ash, A., Gleeson, T., Hall, M., Higgins, A., Hopwood, G., MacLeod, N., Paini, D., Poulton, P., Prestwidge, D., Webster, T., and Wilson, P. (2017). Irrigated agricultural development in northern Australia: Value-chain challenges and opportunities. Agricultural Systems 155, 116–125.
| Irrigated agricultural development in northern Australia: Value-chain challenges and opportunities.Crossref | GoogleScholarGoogle Scholar |
Barber, M. (2018). Settling for dams?: planning for sustainable Indigenous livelihoods within large-scale irrigated agricultural development in north Queensland, Australia. The Rangeland Journal 40, in press.
Bauer, F. H. (Ed.) (1977). ‘Cropping in North Australia: Anatomy of Success and Failure.’ (North Australia Research Unit, Australian National University: Darwin.)
Brisbin, J. (2018). Plans are useless, but planning is essential. The Rangeland Journal 40, in press.
Brodie, J. E., and Mitchell, A. W. (2005). Nutrients in Australian tropical rivers: changes with agricultural development and implications for receiving environments. Marine and Freshwater Research 56, 279–302.
| Nutrients in Australian tropical rivers: changes with agricultural development and implications for receiving environments.Crossref | GoogleScholarGoogle Scholar |
Cameron, B. J., and Hooper, A. D. L. (1985). The agricultural development and marketing scheme in the Northern Territory. In: ‘Agro-Research for the Semi-Arid Tropics: North-West Australia’. (Ed. R. C. Muchow.) pp. 488–503. (University of Queensland Press: Brisbane.)
Chapman, A. L., Sturtz, J. D., Cogle, A. L., Mollah, W. S., and Bateman, R. J. (1996). Farming systems in the Australian semi-arid tropics – a recent history. Australian Journal of Experimental Agriculture 36, 915–928.
| Farming systems in the Australian semi-arid tropics – a recent history.Crossref | GoogleScholarGoogle Scholar |
Chilcott, C. (2009). Growing the north – opportunities and threats to developing agriculture in the north of Western Australia. Farm Policy Journal 6, 11–17.
Commonwealth of Australia (2012). ‘Australia in the Asian Century.’ (Commonwealth of Australia: Canberra.)
Commonwealth of Australia (2015). ‘Our North, Our Future: White Paper on Developing Northern Australia.’ (Commonwealth of Australia: Canberra.)
Cook, G. (2009). Historical perspectives on land use development in northern Australia: with emphasis on the Northern Territory. In: ‘Northern Australian Land and Water Science Review’. Chapter 6. (Ed. P. Stone.) (Northern Australia Land and Water Taskforce and CSIRO: Canberra.)
Cook, D. C., Taylor, A. S., Meldrum, R. A., and Drenth, A. (2015). Potential economic impact of Panama disease (tropical race 4) on the Australian banana industry. Journal of Plant Diseases and Protection 122, 229–237.
| Potential economic impact of Panama disease (tropical race 4) on the Australian banana industry.Crossref | GoogleScholarGoogle Scholar |
Courtenay, P. P. (1978). Agriculture in north Queensland. Australian Geographical Studies 16, 29–42.
| Agriculture in north Queensland.Crossref | GoogleScholarGoogle Scholar |
Dale, A. P. (2018). From conflict to collaboration: can better governance systems facilitate the sustainable development of the northern pastoral industry, communities and landscapes? The Rangeland Journal 40, in press.
Davidson, B. R. (1965). ‘The Northern Myth: a Study of the Physical and Economic Limits to Agricultural and Pastoral Development in Tropical Australia.’ (Melbourne University Press: Adelaide.)
Ellis, F. (2000). ‘Rural Livelihoods and Diversity in Developing Countries.’ (Oxford University Press: London.)
Fisher, M. J., Garside, A. L., Skerman, P. J., Chapman, A. L., Strickland, R. W., Myers, R. J. K., Wood, I. M. W., Beech, D. F., and Henzell, E. F. (1977). The role of technical and related problems in the failure of some agricultural development schemes in northern Australia. In: ‘Cropping in North Australia: Anatomy of Success and Failure’. (Ed. F. H. Bauer.) pp. 35–82. (North Australia Research Unit, Australian National University: Darwin.)
Fletcher, J. (2008). To dam or be damned: the mighty Fitzroy River. Self-published.
Griggs, P. (2002). Changing rural spaces: deregulation and the decline of tobacco farming in the Mareeba–Dimbulah Irrigation Area, far North Queensland. The Australian Geographer 33, 43–61.
| Changing rural spaces: deregulation and the decline of tobacco farming in the Mareeba–Dimbulah Irrigation Area, far North Queensland.Crossref | GoogleScholarGoogle Scholar |
Higgins, A., McFallan, S., McKeown, A., Bruce, C., and Chilcott, C. (2018). Informing major government programs for rural transport infrastructure in northern Australia. The Rangeland Journal 40, in press.
Hunt, W., Birch, C., and Vanclay, F. (2012). Thwarting plague and pestilence in the Australian sugar industry: crop protection capacity and resilience built by agricultural extension. Crop Protection 37, 71–80.
| Thwarting plague and pestilence in the Australian sugar industry: crop protection capacity and resilience built by agricultural extension.Crossref | GoogleScholarGoogle Scholar |
Jakku, E., Thorburn, P. J., Marshall, N. A., Dowd, A. M., Howden, S. M., Mendham, E., Moon, K., and Brandon, C. (2016). Learning the hard way: a case study of an attempt at agricultural transformation in response to climate change. Climatic Change 137, 557–574.
| Learning the hard way: a case study of an attempt at agricultural transformation in response to climate change.Crossref | GoogleScholarGoogle Scholar |
Jarvis, D., Stoeckl, N., Addison, J., Larson, S., Hill, R., Pert, P., and Lui, F. W. (2018). Are Indigenous land and sea management programs a pathway to Indigenous economic independence? The Rangeland Journal 40, in press.
MacLeod, N. D., Mayberry, D. E., Revell, C., Bell, L., and Prestwidge, D. (2018). An exploratory analysis of the scope for dispersed small scale irrigation developments to enhance the productivity of northern beef cattle enterprises. The Rangeland Journal 40, in press.
Mathew, S., Zeng, B., Zander, K. K., and Singh, R. K. (2018). Exploring agricultural development and adaptation in northern Australia under climatic risks. The Rangeland Journal 40, in press.
McGregor, R. (2013). Developing the north, defending the nation? The Northern Australia Development Committee, 1945–1949. The Australian Journal of Politics and History 59, 33–46.
| Developing the north, defending the nation? The Northern Australia Development Committee, 1945–1949.Crossref | GoogleScholarGoogle Scholar |
McKellar, L., Bark, R. H., and Watson, I. (2015). Agricultural transition and land-use change: considerations in the development of irrigated enterprises in the rangelands of northern Australia. The Rangeland Journal 37, 445–457.
| Agricultural transition and land-use change: considerations in the development of irrigated enterprises in the rangelands of northern Australia.Crossref | GoogleScholarGoogle Scholar |
McMaster, C. A., Tran-Nguyen, L. T. T., Voutsinos, M. Y., Cook, S. E., Condé, B. C., West, S. J., and Liberato, J. R. (2015). Outbreak of freckle disease on Cavendish bananas in the Northern Territory, Australia. In: ‘Proceedings of the Australian Plant Pathology Society (APPS)’. Poster 36, 150.
Moise, A., Abbs D. Bhend J. Chiew F. Church J. Ekström M. Kirono D. Lenton A. Lucas C. McInnes K. Monselesan D. Mpelasoka F. Webb L. Whetton P. (2015). Monsoonal north cluster report. In: ‘Climate Change in Australia. Projections for Australia’s Natural Resource Management Regions: Cluster Reports’. (Eds M. Ekström et al.) (CSIRO and Bureau of Meteorology: Australia.)
Mollah, W. S. (1980). The Tipperary story: an attempt at large-scale grain sorghum development in the Northern Territory. In: ‘Two Australian Cropping Studies’. (Eds J. B. Bauer and W. S. Mollah.) pp. 59–183. (North Australia Research Unit, Australian National University: Darwin.)
Mollah, W. S. (1982). Humpty Doo – rice in the Northern Territory. North Australia Research Unit, Australian National University, Darwin.
Nelson, R., Kokic, P., Crimp, S., Martin, P., Meinke, H., Howden, S. M., de Voil, P., and Nidumolu, U. (2010). The vulnerability of Australian rural communities to climate variability and change, Part II: Integrating impacts with adaptive capacity. Environmental Science & Policy 13, 18–27.
| The vulnerability of Australian rural communities to climate variability and change, Part II: Integrating impacts with adaptive capacity.Crossref | GoogleScholarGoogle Scholar |
Office of the Auditor General Western Australia (2016). ‘Western Australian Auditor General’s Report. Ord-East Kimberley Development.’ (Western Australian Government: Perth.)
PCA (2003). Annual report 2003. Peanut Company of Australia, Brisbane.
PCA (2010). Annual report 2010. Peanut Company of Australia, Brisbane.
Petheram, C., McMahon, T., and Peel, M. (2008a). Flow characteristics of rivers in northern Australia: Implications for development. Journal of Hydrology 357, 93–111.
| Flow characteristics of rivers in northern Australia: Implications for development.Crossref | GoogleScholarGoogle Scholar |
Petheram, C., Tickell, C., O’Gara, F., Bristow, K. L., Smith, A., and Jolly, P. (2008b). Analysis of the Lower Burdekin, Ord and Katherine–Douglas–Daly irrigation areas: implications to future design and management of tropical irrigation. CRC for Irrigation Futures technical report no. 05/08, CSIRO Land and Water Science report 19/08.
Petheram, C., Watson, I., and Stone, P. (Eds) (2013a). ‘Agricultural resource assessment for the Flinders catchment.’ A report to the Australian Government from the CSIRO Flinders and Gilbert Agricultural Resource Assessment, part of the North Queensland Irrigated Agriculture Strategy. (CSIRO Water for a Healthy Country and Sustainable Agriculture Flagships: Canberra.)
Petheram, C., Watson, I., and Stone, P. (Eds) (2013b). ‘Agricultural resource assessment for the Gilbert catchment.’ A report to the Australian Government from the CSIRO Flinders and Gilbert Agricultural Resource Assessment, part of the North Queensland Irrigated Agriculture Strategy. (CSIRO Water for a Healthy Country and Sustainable Agriculture Flagships: Canberra.)
Petheram, C., McKellar, L., Holz, L., Poulton, P., Podger, S., and Yeates, S. (2016). Evaluation of the economic feasibility of water harvesting for irrigation in a large semi-arid tropical catchment in northern Australia. Agricultural Systems 142, 84–98.
| Evaluation of the economic feasibility of water harvesting for irrigation in a large semi-arid tropical catchment in northern Australia.Crossref | GoogleScholarGoogle Scholar |
Petheram, C., Gallant, J., Stone, P., Wilson, P., and Read, A. (2018). Rapidly assessing large dam and irrigation development potential across continental areas: application to northern Australia. The Rangeland Journal 40, in press.
Poggendorff, W. (1949). ‘Rice Production Possibilities in the Kimberleys and the Northern Territory.’ (Department of Agriculture: Sydney.)
Russell-Smith, J., and Sangha, K. K. (2018). Emerging opportunities for developing a diversified land sector economy in Australia’s northern savannas. The Rangeland Journal 40, in press.
Stoeckl, N., Jackson, S., Pantus, F., Finn, M., Kennard, M. J., and Pusey, B. J. (2013). An integrated assessment of financial, hydrological, ecological and social impacts of ‘development’ on Indigenous and non-Indigenous people. Biological Conservation 159, 214–221.
| An integrated assessment of financial, hydrological, ecological and social impacts of ‘development’ on Indigenous and non-Indigenous people.Crossref | GoogleScholarGoogle Scholar |
Stokes, C., Addison, J., Macintosh, A., Jarvis, D., Higgins, A., Doshi, A., Waschka, M., Jones, J., Wood, A., Horner, N., Barber, M., and Lau, J. (2017). Costs, benefits, institutional and social considerations for irrigation development. A technical report to the Australian Government from the CSIRO Northern Australia Water Resource Assessment, part of the National Water Infrastructure Development Fund: Water Resource Assessments. CSIRO, Canberra, Australia.
Sutherst, R. W., and Maywald, G. F. (1985). A computerised system for matching climates in ecology. Agriculture, Ecosystems & Environment 13, 281–299.
| A computerised system for matching climates in ecology.Crossref | GoogleScholarGoogle Scholar |
Tesoriero, L. A., Chambers, G., Srivastava, M., Smith, S., Conde, B., and Tran-Nguyen, L. T. T. (2016). First report of cucumber green mottle mosaic virus in Australia. Australasian Plant Disease Notes 11, 1.
| First report of cucumber green mottle mosaic virus in Australia.Crossref | GoogleScholarGoogle Scholar |
Wallace, L. (2002). ‘The Battlers of Butcher’s Hill: The Frontier Families of Lakeland 1874–2002.’ (Central Queensland University Press: Rockhampton.)
Whitehead, A. L., Kujala, H., and Wintle, B. A. (2017). Dealing with cumulative biodiversity impacts in strategic environmental assessment: A new frontier for conservation planning. Conservation Letters 10, 195–204.
| Dealing with cumulative biodiversity impacts in strategic environmental assessment: A new frontier for conservation planning.Crossref | GoogleScholarGoogle Scholar |
Wilson, P., Ringrose-Voase, A., Jacquier, D., Gregory, L., Webb, M., Wong, M., Powell, B., Brough, D., Hill, J., and Lynch, B. (2009). Land and soil resources in Northern Australia. In: ‘Northern Australia Land and Water Science Review 2009’. Chapter 2. pp. 2-1–2-47. (Ed. P. Stone.) (Northern Australia Land and Water Taskforce and CSIRO: Canberra.)
Yeates, S. (2009). Issues for new crop research and development in northern Australia: using BT cotton as a case study. Farm Policy Journal 6, 25–33.
Yeates, S. J., Strickland, G. R., and Grundy, P. R. (2014). Can sustainable cotton production systems be developed for tropical northern Australia? Crop & Pasture Science 64, 1127–1140.
