Brian Clark
S.A.N.P.W.S

Caves require special management attention within the broader context of environmental management.  Values which relate to caves as natural phenomena include:
       * geological interest
       * geomorphological interest
       * mineralogical interest
       * palaeontological values
       * archaeological and cultural values
       * hydrological values
       * provision of habitat for specific flora and fauna

These varied natural values provide a resource which, through research, enhances our understanding off past climatic and geological events.  In addition, sheltered cave environments provide habitat for a range of relic or sparsely distributed species of plants and animals.  Such species offer insights into the evolutionary processes and, as they often exist in relatively closed communities, a range of ecological processes not readily studied elsewhere.

Added to these natural values are social values including:

       * opportunities to visit places of curiosity, fantasy or physical challenge
       * opportunities for tourism, recreation and education
       * cultural interest

These values place a demand on a effectively non-renewable resource: the caves of South Australia.

Sensitive features of caves include speleothems, sediments, fossil deposits, rock faces, cultural sites, and cave dwelling flora and fauna.  These features are particularly prone to disturbance from users, pollutants, and changes to the cave atmosphere and natural hydrology.

2.   MANAGEMENT CONTEXT

2.1  Introduction

Many caves in south Australia occur within reserves managed by the South Australian National Parks and Wildlife Service (SANPWS), which is manager and custodian of land, wildlife and sites of natural and historical significance throughout South Australia.  It is also an educational and advisory organization which assists the public in understanding and enjoying the states heritage while ensuring that it is preserved for future generations.

2.2  Objectives of Cave Management

The National Parks and Wildlife Act,1972 (Section 37) provides general objectives for the management of reserves, and the following pertain to the management of cave in reserves:

The minister, the Chief Executive Officer and the Director must have regard to the following objectives in managing reserves:

* the preservation of wildlife
* the preservation of historic sites, objects and structures of historic or scientific interest within the reserves
* the preservation of features of geological, natural or scenic interest
* the encouragement of public use and enjoyment of reserves and education in, and a proper understanding and recognition of their purpose and significance

In addition to the general objectives cited in the Act it is proposed that the following objectives will apply to the management of caves within SANPWS reserves.  Visitor access to the caves will be permitted, subject to any management plan, and regulated having regard to:

* the conservation and protection of the natural and cultural heritage of caves
* education and appreciation of caves and there related features
* research into and documentation of cave values
* allowing natural cave development processes to continue with minimal disturbance
* the restoration of degraded cave systems
* the protection of the habitat and communities of plants and animals of caves

2.3  Role of Management

The Regulations under the National parks and Wildlife Act,1972 provide for specific legislative protection of caves within reserves.  Regulation 10 provides that:

A person must not, without the permission of the director:

a) enter a cave within a reserve (except in the company of a warden or person assisting a warden)
b) remove or display and rock, mineral or fossil in a cave
c) disturb or interfere with any plant or animal (whether dead or alive) in a cave
d) touch or interfere with any karst-calcite formation (speleothem) in a cave 
e) urinate or defecate in a cave
f) deposit any organic or inorganic matter in a cave
g) disturb, touch or interfere with any Aboriginal art or artifact in a cave
h) use any paint, dye or marker in a cave, or release any substance into the waters of a cave
i) smoke any tobacco product in a cave

Regulation 30 provides that a person must not, without the permission of the director, carry out scientific research in a reserve.

The purpose of the Act is “to provide for the establishment and management of reserves for public benefit and enjoyment; to provide for the conservation of wildlife in a natural environment; and for other purposes”.  The role of management therefore is to find an appropriate balance between these opposing objectives. 

In the case of managing access to caves the task of deciding who should be permitted to visit which caves and for what purpose is a complex one.  In order to protect caves in SANPWS reserves and provide adequate opportunities for user groups a, policy is necessary to classify caves and regulate visitor access.

3.  CAVE CLASSIFICATION

3.1  Introduction

To manage caves in reserves, the SANPWS has adapted a cave classification scheme.  Classification will be determined by SANPWS subsequent to consultation with the South Australian Speleological Council (SASC) and recognized speleologists.  Where a cave or site within a cave has cultural significance to Aboriginal people the SANPWS will consult with the relevant Aboriginal organization or individuals and the Aboriginal Heritage Branch (Department of Environment and Planning).

A cave may have sites of more than one category or subcategory. the classification of a site will be reviewed if its significance or condition is modified by any subsequent discoveries or any deterious impact. Unless otherwise provided for in a management plan the following classifications and management guidelines will apply.

3.2  Category 1: Caves Providing for Public Access

This category relates to those caves which are actively presented and interpreted to the public for aesthetic appreciation, education and recreation.

SHOW CAVES

The emphasis in this subcategory is on public education and aesthetic appreciation.  Access will be either guided or self-guided, or with written approval for research.

ADVENTURE CAVES

The management emphasis of the subcategory is on aesthetic appreciation and physical recreation.  Controls on access and activities will depend on the nature of the site, with route selection and visitor behavior avoiding exposure of vulnerable features to damage.  This subcategory is for those sites which are managed for general visitor use and which require little equipment or experience for a safe visit.  Access will be either guided or self-guided, under provisions as provided for in plans of management adopted for each cave reserve, or with written approval for research.

WILD CAVES

The management objectives for Wild Caves are to protect site values, to provide opportunities for research, and to provide opportunities for recreation and exploration.  Access will be provided to individuals holding SASC (South Australian Speleological Council) Accreditation Committee endorsement (see section 4). Access to water-filled sites will require the appropriate Cave Divers Association of Australia (CDAA) accreditation.

3.3.  Category 2: Special Purpose Sites

This category relates to caves or sites where there is a specific need to protect special values.

REFERENCE SITES

This subcategory will provide for protection of relatively undisturbed baseline sites, and conserve an example of types.  Access will only be provided for research specifically related to baseline functions, where such research can not reasonably be carried out elsewhere.

SITES OF SPECIAL VALUE

This category will apply to any site where protection is necessary to maintain scientific, nature conservation, cultural, educational or aesthetic values.  Access will be permitted for documentation and research to enhance management of those values, or approved special interest groups, under appropriate conditions.

DANGEROUS SITES

The management objective for sites in this subcategory is to protect human life.  Access may be provided for research by appropriately trained and equipped persons.

UNCLASSIFIED SITES

Unclassified Sites will be managed to allow investigation of site values, such that the classification of each site may be based on reasonably complete information.  New sites and extensions to known sites discovered within the reserves will be listed as Unclassified until sufficient research has been conducted to determine their most appropriate classification.  Access will be provided for research only.

4.  ACCESS ACCREDITATION

The major causes of damage by visitors include: 

* overcrowding
* overuse
* inadequately trained group leaders
* inappropriate ratios of leaders to inexperienced cavers
* mismatched objectives, where the purpose of a visit is incompatible with management objective of the site
* vandalism

Although the cave classification system provides guidelines to determine appropriate purposes for entering caves it does not determine who should be given permission to enter the caves.  It is therefore necessary to adopt an accreditation system to assist managers in providing appropriate access opportunities.  Accreditation will be provided by the SASC.  The development and implementation of this SASC accreditation system will be subject to acceptance by the SA NPWS.

5.  ACCESS CONTROL

Access to caves managed by the SANPWS will be subject to a permit system.  The administration of the permit system will be the responsibility of the reserve manager. The manager will maintain a register of visits and proposed visits to:

* ensure that overcrowding/overuse does not occur.
* provide a record of visitor numbers and accreditation levels to facilitate the monitoring of visitor impact.
* provide a record of research undertaken.

The manager will consider all written applications lodged no less than four weeks prior to the intended visit, and containing details of the purpose of the visit, and listing names of the members of the group and their level of SASC accreditation, and CDAA accreditation if required.

No more than two weeks after receipt of the written application, the manager will, in writing, either provide or refuse permission to enter the site.  Permits will be issued only after a manager is satisfied that the purpose of the visit is compatible with the classification of the cave and the objectives of the management plan (or in the absence of a management plan, with the objectives of the National Parks and Wildlife Act, 1972).

Unless specified in a management plan, the maximum party size for groups not under the direct supervision of SA NPWS will be eight persons.  The minimum party size will be four persons.  The SANPWS will have regard to any conditions or provisions required to protect site values before any approval to enter a site is granted.  In exceptional circumstances, such as for search and rescue, SA NPWS may exempt requirements for accreditation, written applications, and group size.

6.  Fees

A fee will be levied for the issue of access permits, except where access is provided for:

* by a scientific research permit
* management initiated projects to protect or rehabilitate cave values

Revenue raise will be credited to the General Reserves Trust account to fund SANPWS approved projects to enhance cave management.  The fee structure will be based on a per person per day rate.