Namadgi National Park
Feral Horse Management Plan 2007
Feral Horse Damage
Bimberi Flat 2006 – (top)
Jack’s Flat 2003 – (middle)
Rock Flat 2004 – (Lower)
Table of Contents
Executive Summary .............................................................................................. 2
1.0 Introduction ..................................................................................................... 3
Figure 1: Key elements of a vertebrate pest management program ................. 4
2.0 Feral horses – the problem............................................................................. 4
2.1 Feral horse biology ..................................................................................... 4
2.2 Environmental impacts................................................................................ 5
2.3 The history of feral horses in Namadgi National Park (NNP) ...................... 6
Figure 2 - Current distribution of feral horses in Namadgi National Park and
northern Kosciuszko National Park ..................................................................... 8
2.4 Environmental impacts of feral horses in NNP ............................................ 9
3.0 Setting management priorities for NNP – legislation and policy relating to
feral horse control ............................................................................................... 10
4.0 The 2004 NNP Feral Horse Management Plan ............................................ 10
4.1 Management options trialled under the 2004 Plan .................................... 10
4.2 Management since 2004 - implications for future control options ............. 10
5.0 Objectives for feral horse management in NNP ......................................... 12
5.1 Management goal ..................................................................................... 12
5.2 Management objectives ............................................................................ 12
6.0 Proposed feral horse management program under the 2007 Plan ........... 13
6.1 Feral horse management options ............................................................. 13
6.2 Trapping and euthanasia .......................................................................... 14
6.3 Aerial shooting .......................................................................................... 14
Table 2: Conditions for aerial shooting of feral horses in NNP ....................... 15
8.0 Monitoring and evaluation of the NNP feral horse management program16
Figure 3 Recovery of Smokers Gap (NNP) following removal of feral horses in
1987 ...................................................................................................................... 16
9.0 References ..................................................................................................... 17
Appendix: 1 Legislation and policy relevant to feral horse management in
NNP ....................................................................................................................... 20
Appendix 2: Comparison of the main control options for feral horses in NNP
.............................................................................................................................. 22
Namadgi National Park Feral Horse Management Plan (2007)
1
Executive Summary
Namadgi National Park (NNP) forms the northern end of the Australian Alps network of
national parks; an area recognised internationally for its unique natural and cultural values.
The Cotter River Catchment within NNP provides the main source of potable water for the
Canberra region. Protection of water resources in NNP is therefore a primary
management concern for the park. The sub-alpine wetlands that filter and regulate stream
flows are also important for their biodiversity. The internationally significant Ginini Flats
Wetland includes the principal habitat for the endangered Northern Corroboree Frog.
Parks, Conservation and Lands has legislative responsibility to protect the natural, cultural
and water quality values within NNP, which includes minimising the negative impact of
introduced species, including feral horses. Environmental damage attributed to feral
horses includes grazing of sensitive vegetation, trampling of stream banks, trail formation,
and erosion. These impacts can lead to the draining of entire bog systems, with loss of
habitat for threatened species, and silt deposition downstream.
Feral horses were eradicated from NNP in 1987 and were not sighted again until 2001,
when small groups began appearing briefly along the southwestern border with NSW.
These horses are part of a much larger population within northern Kosciuszko National
Park (KNP). Since 2003 the number of horses within NNP has increased to 15 in 2006
and some horses are remaining over winter, increasing the damage to several grassy flats.
The previous edition of the NNP Feral Horse Management Plan (2004) was a first
response to the threat of feral horses re-establishing in NNP. Under that plan, four horses
were removed from Rock Flat Wetland. This revised edition of the Plan (2007) has
benefited from experience in both the ACT and NSW since 2004, and from review by two
independent professionals with expertise in feral horse ecology and animal welfare. The
Plan has been adopted following consultation with the relevant ACT advisory committees
and will be provided to other local, interested stakeholders.
The Plan has two objectives:
 Removal of the current feral horses (and therefore their impact) from NNP; and
 Reduction of the requirement for on-going feral horse control in NNP
It is important to control horse numbers in NNP now, while the population is small, to
reduce the risk of further sub-alpine wetlands being impacted, and minimise the number of
horses that have to be removed. The second, longer-term objective will be achieved by
working cooperatively with NSW National Parks and Wildlife Service to manage the much
larger feral horse population in the adjacent area of northern KNP.
The management actions proposed under this Plan adhere to the three essential
requirements for pest control techniques – necessity, effectiveness and humaneness.
Trapping followed by euthanasia at the trap yard will be the primary method employed,
with aerial shooting used as a secondary option if required, and where appropriate. These
techniques represent the most humane and effective methods that are suited to the
remote terrain and vegetation types in NNP. They accord with the new Model Code of
Practice for the Humane Control of Feral Horses and represent current best practice for
the animals, the operators, and the environment.
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1.0 Introduction
Namadgi National Park (NNP) occupies the southern and western portions of the
Australian Capital Territory (ACT) at the northern end of the Australian Alps network of
national parks; an area recognised internationally for its unique natural and cultural values.
The area of NNP is 106,095 hectares; approximately 45% of the area of the ACT. The
park includes the headwaters of the Cotter River, which provides the main source of water
for the 350,000 people of Canberra and Queanbeyan. A feature of the Cotter Catchment
is the large number of sub-alpine wetlands. They are important for their biodiversity and
because they store water and release it steadily through all months of the year. All of
these wetlands are regionally important and eleven are listed as wetlands of national
significance. The Ginini Flats Wetland within the Cotter Catchment is of international
significance; listed under the Ramsar Convention, an international treaty developed to
ensure conservation and wise use of wetlands.
Parks, Conservation and Lands has legislative responsibility to protect the natural, cultural
and water quality values within NNP; which includes minimising the negative impact of
introduced species, including horses. A population of feral horses was present from the
early years of the ACT and grew to 200 in the early 1960’s. This horse population is said to
have been almost eliminated by a large snow event in 1964. The remaining horses (33)
were eradicated in 1987. Since 2001, small groups of feral horses have been recorded in
the southwestern area of the park. The location of these horses suggests they are
associated with the much larger horse population within northern Kosciuszko National
Park (KNP).
The first edition of the Namadgi National Park Feral Horse Management Plan (ACT
Government 2004a) was prepared in response to concerns over the potential for reestablishment of feral horse populations within NNP. Under that plan a number of feral
horse management techniques were trialled and four horses were removed from Rock Flat
Wetland. This revised edition of the Plan (2007) has benefited from experience in both the
ACT and NSW since the 2004 Plan was written.
The 2007 Plan has been developed using the strategic framework for vertebrate pest
management programs outlined in the ACT Vertebrate Pest Management Strategy (ACT
Government 2002). This structured approach is summarised in Figure 1.
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Figure 1: Key elements of a vertebrate pest management program
Define the problem
Determine management priorities
Decide feasibility
Determine objectives
Develop the program
Implement the program
Monitor and evaluate
Accordingly the Plan includes:
 A summary of feral horse biology, their environmental impacts, and the history,
current impacts and potential future problems associated with feral horses in NNP.
 A summary of the legislation and policy relating to the setting of management
priorities, including feral horse management, in NNP.
 A report on the outcome of feral horse management options trialled under the 2004
NNP Feral Horse Management Plan, and their feasibility as future control methods.
 The objectives for feral horse management in NNP.
 The feral horse management program proposed under this (2007) Plan.
 Monitoring and evaluation of the NNP feral horse management program.
2.0 Feral horses – the problem
2.1 Feral horse biology
Information provided in this section has been summarised mainly from Dobbie et al. (1993)
– readers should refer to this reference for more detail and for the original sources.
Horses have adapted to many Australian environments and inhabit a wide range of
ecosystems including semi arid rangelands and sub-alpine mountains. Most of the
estimated 400,000 feral horses in Australia are found in the Northern Territory,
Queensland and parts of Western Australia and South Australia. The majority of the feral
horses in New South Wales and Victoria occur in the sub-alpine national parks.
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Feral horses form small breeding groups, known as harems, and all male associations
known as bachelor groups. Harem groups, comprising a dominant stallion and three or
more mares and their offspring, occupy a territory within a small geographic area, provided
that food and water are available. In contrast, bachelor groups are more mobile as they
move in search of new territories. Studies from central Australia suggest that harem
groups have a strong affinity for their home range, resisting attempts to move them on by
mustering.
The peak breeding season for horses is spring and summer. Mares reach puberty
between 12 and 24 months of age and although capable of foaling every year, generally
raise one foal every two years. Feral horse populations can increase by 20% per year
when resources are not limiting.
2.2 Environmental impacts
Numerous studies have shown that herbivores alter vegetation by feeding and trampling.
In areas where feral horses are present at high densities, most managers accept from
observational evidence that environmental impacts can be significant. However, these
impacts are difficult to quantify because of the influence of co-existing factors including
season, weather conditions, the effects of other herbivores, and recreational impacts. As
with other herbivores, resident feral horses have the potential to disperse weed seeds in
their dung (Taylor 1995), although introduction of weed seed is more likely via birds,
recreational horse riders and people (on foot and in vehicles).
The impacts of feral horses on vegetation are being monitored as part of a trial of feral
horse management techniques in the alpine areas of Kosciuszko National Park (NSW
NPWS 2003). As selective grazers that spend between 51 and 75% of their time feeding,
feral horses undoubtedly have the potential to alter the species composition of the grassy
areas on which they feed. Feral horses have been linked to compromise of rare plant
habitat and landscape nature conservation values in New Zealand (Rogers 1991).
Studies of grazing and trampling by feral horses in the Australian Alps (Dyring 1990,1993)
have shown the main impacts of feral horses include:

Track formation - feral horses travel in defined routes causing tracks to form. Soil
beneath these tracks becomes compacted and drier than the surrounding soil, has
fewer native plants, more weeds and higher rates of soil loss. Vegetation is also
killed in areas where horses roll, creating bare ground that becomes subject to
erosion and invasion by exotic plants.

Stream bank erosion - high rates of bank disturbance have been noted where
horses access streams for drinking or at crossing points. The damage includes
bank slumping and loss of riparian vegetation.

Damage to wetlands and bogs - grazing and trampling in wetlands and bogs can
result in a decrease in Sphagnum and sedges. This vegetation loss combined with
tracking leads to lateral erosion, stream incision and ultimately to the draining of
the entire bog, with attendant silt deposition downstream.
Feral horses have also been shown to impact the native fauna of countries into which they
have been introduced including the survival of grass nesting birds (Zalba and Cozzani
2004), reptiles, and small mammals (Beever and Brussard 2004).
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Research is required to quantify the relationship between feral horse density and degree of
environmental impact (Dawson et al. 2006). If feral horses can be successfully removed
from NNP the park could provide ‘horse free’ sites for comparative studies in the Australian
Alps (Dawson, pers. comm.).
2.3 The history of feral horses in Namadgi National Park (NNP)
Feral horses probably established in the area now encompassed by NNP from animals
escaping from Brindabella Station, Yaouk, Tidbinbilly property (Moore 1999) and from the
Cotter Hut area in the mid 1800’s. By the 1860’s feral horses were already considered a
nuisance and to be competing with cattle, and were caught for sale or shot, with the hides
and hair sold when possible (Higgins 1993).
Organised ‘brumby running’ (the chasing and capturing of wild horses) was undertaken at
least as early as the 1920’s, and remained popular in the area up until the early 1960’s
(Higgins 1993). Almost all of the early brumby running undertaken in the Brindabella area
was co-ordinated by the first Cotter Catchment ranger, Jack Maxwell. Over 200 feral
horses were reported to have been sighted near Snowy Flats and Mt Ginini in 1929. Other
populations were present at Smokers, Kangaroo and Creamy Flats. The historic
distribution of feral horses within NNP is illustrated by the location of horse trapping yards
(Higgins 1993) (Figure 2).
The local population of approximately 200 feral horses is said to have been almost
eliminated by a large snow event in 1964 (Walter 2002) and the remaining horses (33)
were eradicated by aerial and ground shooting in 1987 in accordance with the Namadgi
National Park Management Plan (Department of Territories, ACT Parks & Conservation
Service 1986). While best culling practice was observed, the action attracted considerable
media attention and community concern.
Namadgi National Park remained free of feral horses until 2001-02 when there was a
trickle of reports from bushwalkers of horses and horse sign at Murrays Gap and Leura
Gap on the ACT border. The first sightings by management staff of feral horses within
NNP since 1987 occurred in June 2003. A harem group of seven animals were observed
in an area known as Jack’s Flat on the park boundary to the south of Mount Murray (see
Figure 2). These horses had disappeared from NNP in July 2003, being observed just
over the border in Kosciuszko National Park (KNP) in September. In December 2003 the
same horses plus three foals were sighted again at Jack’s Flat by which time their
presence had caused some damage to the Flat (see photograph on the cover of this Plan).
Trap yards were erected at Jack’s Flat in March 2004 but the horses had apparently
returned to KNP due to the prevailing dry conditions. Horses returned to the Mt Murray
area in October 2005 and 13 horses (including two foals) were observed at Jack’s Flat in
March 2006. Eleven horses were sighted at the Flat in June 2006 suggesting that the mild
winter conditions permitted the group to over-winter in NNP. The movement of this group
of horses to and from Jack’s Flat accords with Dyring’s (1990) observation that feral
horses are highly mobile, using movement corridors between suitable grazing sites in
montane areas.
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A separate group of four horses was sighted in the Orroral Valley in June 2003 by a
member of the public. In October 2003 another public report suggested these same horses
had moved to the Cotter Gap/ Rock Flat area of the park, near the eastern boundary of the
Cotter Catchment. They were also observed near Corin Dam. Park staff confirmed the
presence of a group of four horses at the nationally significant Rock Flat Wetland in March
2004. A decision was made to cull the horses immediately because of the damage the
horses were causing to this significant area.
Aerial observations conducted in November 2006 located four adult horses and a foal at
Bimberi Flat, close to the summit of Mt Bimberi and the NSW border. This was a new
group as the individuals were different colours from those being sighted at Jack’s Flat. The
extent of ground disturbance indicated the horses may have over-wintered in this area. As
with the harem group at Jack’s Flat it is likely that these horses have a home range that
spans the NNP/KNP border.
The small groups of feral horses observed within NNP in recent years are the expanding
eastward edge of the feral horse population in the northern end of Kosciuszko National
Park (KNP) (see Figure 2). This northern population was largely unaffected by the 2003
bush fire (Walter 2003), and prior to 2003 was the largest population in KNP. The horse
population on the Currango Plain is not limited by food and is increasing at up to 26% per
year (Walter 2002). Since the Currango population is a likely source of horses entering
NNP, the rate of incursions into the ACT is expected to increase in the coming years until
some form of horse control is initiated within the adjacent area of northern KNP.
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Figure 2 - Current distribution of feral horses in Namadgi National
Park and northern Kosciuszko National Park
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2.4 Environmental impacts of feral horses in NNP
The current number of feral horses using sub-alpine flats around Mt Murray and Mt
Bimberi is small, however, their activities are already causing loss of vegetation cover in
some areas (see photographs on the cover of this Plan).
Historical records from NNP demonstrate that the sub-alpine bogs and wetlands provide
suitable conditions for large permanent or semi permanent populations of feral horses to
establish over a far wider area than the horses currently occupy. The area of the ACT that
is now declared as NNP supported about 200 horses in the early 1960’s. This same area
may now offer habitat that is even more suitable for feral horses than in the 1960’s due to
the withdrawal of stock grazing since that time, and reduced snowfall. There is already
evidence from Jack’s Flat that feral horses are changing from altitudinal migrants to
residents (remaining over winter) due to the amelioration in winter conditions in recent
years.
Expanding herbivore populations are presumed to conform to the herbivore eruption
hypothesis (Caughley 1976, Forsyth and Caley 2006). This means the peak herbivore
density is some way behind the leading edge of the advance, while further back, the
density settles to a lower, more stable level. The extreme pressure on vegetation
associated with the peak of feral horse density would be unacceptable in the sensitive bog
vegetation communities within NNP.
Within NNP all 11 of the nationally important wetland sites were burned in the January
2003 bushfires, with the extent of impact ranging from 70 –100% (Carey et al. 2003).
These wetlands are extremely important as filters and storages for the Canberra and
Queanbeyan water supply. Whilst some wetland areas have recovered relatively quickly,
others such as the Ginini and Cheyenne Flats Sphagnum bogs, will remain sensitive to
any additional threatening process, such as feral horse impact, for a very long time. The
long term growth rate for the Ginini Sphagnum wetland has been estimated at only 3.5
cm/century (Hope et al. 2003). Ginini Flats includes the principal known habitat for the
endangered Northern Corroboree Frog (Pseudophryne pengilleyi). The sub-alpine
wetlands of NNP also provide habitat for the threatened (listed in NSW) Broad-toothed Rat
(Mastacomys fuscus) and the migratory Lathams Snipe (Gallinago hardwickii). A post fire
recovery program for wetland and bog communities is ongoing within NNP.
From the perspective of the domestic water supply catchment, the presence of livestock,
including horses can also have potential consequences for human health. Cattle, pigs,
sheep and horses are known to carry the parasite Cryptosporidium parvum (Cole et al.
1998), which can cause serious gastroenteritis if it contaminates drinking water.
It is clear that if the current, small feral horse population in NNP is permitted to grow and
expand its range there will be increasing damage to sensitive sub-alpine ecosystems with
deleterious impacts on biodiversity and the water catchment. In addition to the ecological
imperative to remove the horses as soon as possible, there is also an important animal
welfare benefit to be gained by acting now in order to minimise the number of horses that
have to be harmed in the long term.
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3.0 Setting management priorities for NNP – legislation and policy
relating to feral horse control
Namadgi National Park is subject to a wide range of legislation (Commonwealth and ACT),
agreements, and policy guidelines. Appendix 1 lists those with the most relevance to the
setting of management priorities for NNP, including vertebrate pest management and the
control of feral horses in the park.
4.0 The 2004 NNP Feral Horse Management Plan
4.1 Management options trialled under the 2004 Plan
The NNP Feral Horse Management Plan (ACT Government 2004a) was adopted following
extensive consultation with key stakeholders including the ACT Animal Welfare Advisory
Committee, Interim Namadgi Advisory Board, ACT Natural Resource Management
Advisory Committee and the ACT Flora and Fauna Committee.
The 2004 Plan included a zoning plan and the following three options for feral horse
management:
1. Barrier fencing (zone 1 along the ACT border) - fences constructed in areas where it
was considered there was a possibility of preventing feral horse migration into NNP from
adjacent areas of KNP.
2. Trapping and removal (zone 2) - trapping and removal of horses from areas that are not
located in the water catchment or threatened species habitat, and that have road access.
3. Humane destruction by aerial or ground based shooting (zone 3) - areas with limited
access which include most of the declared Cotter Catchment area and the nationally listed
wetlands within NNP.
4.2 Management since 2004 - implications for future control options
4.2.1 Barrier fencing
In accordance with the 2004 Plan barrier fencing was constructed near Jack’s Flat,
Murray’s Gap and Leura Gap with the following results:
Jack’s Flat - regular maintenance of the fence proved to be a problem due to damage from
falling trees in an area that has no vehicle access. The remains of the fence were
subsequently removed.
Murray’s Gap – the fence was constructed in forest to the east of where horses have
traditionally moved in this area. Probably for this reason, there has been no sign to date of
horses moving close to or past this fence.
Leura Gap – horses have moved from KNP around the end of the fence at Leura Gap and
into NNP. However, the horses appear to restrict their activity to the small grassy glade at
Leura Gap and return to NSW via the same route around the fence.
Further investigation of horse movements from their tracks shows they readily move
through bushland well to the side of the gaps or passes where the strategic fences were
attempted. For this reason the barrier fence trial will be ended.
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4.2.2 Trapping and removal
In March 2004 a professional contractor with experience in handling feral horses was
appointed to trap and remove the horses at Jack’s Flat using the yard that had been built
there. The intention was to lead the trapped animals by horseback out to vehicle transport
on the Lone Pine Fire Trail in NSW. Although the horses had previously been entering the
yard in search of the salt attractant, the contractor was unable to locate the horses in the
area and concluded that lack of water had forced the horses back into KNP.
Experience in KNP since 2004 has caused NSW NPWS to abandon the practice of leading
trapped feral horses across country to vehicle transport due to concerns over operator
safety, animal welfare and cost effectiveness. Future trap yards in KNP will be limited to
areas where horse transport vehicles can be driven. Therefore in the light of the KNP
(NSW) experience, trapping and leading out of horses from inaccessible locations within
NNP has been dropped as a management option under this edition of the Plan.
The potential to use contractors to transport horses directly from traps located adjacent to
vehicle tracks will be maintained under this Plan. However, the Model Code of Practice
(COP) for the Humane Control of Feral Horses (NSW Department of Primary Industry
(DPI) 2005a) states that it may be more humane to destroy the animals where they are
caught than subject them to the additional stress of transport (particularly over long
distances); a view supported by the RSPCA (Jones and Coleman 2006). A Code of
Practice for the Capture and Transport of Feral Horses has been developed as part of a
review of management of feral horses in national parks in NSW (English 2001). The report
accompanying the COP makes the following points that are pertinent to a decision about
whether to attempt to transport feral horses after trapping:


even with the best system in place the capture and subsequent transport of feral
horses is extremely stressful for the animals; and
the majority of feral horses are not suitable for domestication, with generally only
young animals being taken for adoption as saddle horses or pets.
The above animal welfare concerns, in addition to the remote location of most of the flats
occupied by horses in the Bimberi Range, make it unlikely that transporting of trapped feral
horses will be a realistic option in this area of NNP. However, trapping and transporting
may be used to remove ‘stray’ domestic horses from the park.
4.2.3 Lethal control by ground based shooting
Experience with the ground based shooting of four feral horses at Rock Flat wetland in
2004 was instructive and is reported here. Although there were two experienced
marksmen working together, only two of the horses were shot initially. The other two
horses escaped into surrounding timbered country. An immediate aerial search located
the remaining horses and verified that they were uninjured. These horses were culled
three months later, again by ground based shooting, in the same area.
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The operation at Rock Flat underlines the difficulty in ground shooting groups of feral
horses in areas surrounded by wooded, undulating terrain and bears out the advice in the
Model COP for the Humane Control of Feral Horses (NSW DPI 2005a). The COP
considers that ground shooting is not suited to rough country on animal welfare grounds
because of the risk that any wounded animals could not be rapidly followed and
dispatched.
A control method with a high probability of leaving some animals to return rapidly to a
sensitive site also fails to achieve the original management objective. Ground based
shooting therefore appears to be an inappropriate technique for feral horse control in most
areas of NNP from both the animal welfare and environmental perspective. A potential
exception could be for removal of small groups or individual animals in vehicle accessible
areas of wide grassy valleys such as Gudgenby and Orroral where a wounded animal
could be followed and rapidly dispatched. Ground shooting would also be suited for
routine euthanasia of feral horses that are incapacitated due to poor health or injury.
5.0 Objectives for feral horse management in NNP
5.1 Management goal
The following management goal expressed in the NNP Feral Horse Management Plan
(ACT Government 2004a) is retained in this edition of the Plan:
 To prevent the re-establishment of feral horse populations within NNP, specifically
relating to the potential for these animals to cause undesirable impacts to subalpine wetlands.
5.2 Management objectives
The feral horse management program outlined in this Plan seeks the following outcomes:


Removal of the current feral horses (and therefore their impact) from NNP
Reduction of the requirement for on-going feral horse control in NNP
Methods proposed for removal of the current feral horses in NNP are discussed in
Section 6.
The second, longer term objective will be achieved by developing a joint approach with
NSW National Parks and Wildlife Service (NSW NPWS) to manage the source population
of feral horses in the adjacent area of northern Kosciuszko National Park (KNP). The ACT
will liaise with NSW NPWS during the development of the new Feral Horse Management
Plan for KNP to facilitate cooperative feral horse management in the Goodradigbee River
area. The feral horses in the Mt Murray and Mt Bimberi areas of NNP probably move to
and from the Goodradigbee River valley to access water and additional foraging grounds.
Feral horse removal from this area under the KNP Feral Horse Management Plan will
reduce the likelihood of reinvasion of NNP in the longer term.
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6.0 Proposed feral horse management program under the 2007
Plan
The management of feral horses is an issue of considerable interest to many members of
the community. It is imperative that all feral horse control is carefully planned, adequately
resourced and carried out in a humane and professional manner. Any control program
that falls short of nationally accepted standards, or fails to adequately consult
stakeholders, can create negative media attention with the potential to jeopardise feral
horse management across all Australian jurisdictions (Dawson et al. 2006).
Animal welfare stakeholders in the ACT have been consulted on this Plan (2007) through
the ACT Animal Welfare Committee. The Plan has also been circulated to the Flora and
Fauna Committee, Natural Resource Management Advisory Committee and to members
of the Interim Namadgi Advisory Board. Neighbouring land holders and managers will also
be advised of the ACT’s intention to carry out feral horse control in NNP. NSW NPWS will
be provided with detailed information on the planned control operation to enable their staff
to handle public enquiries that ACT actions may generate.
Management of feral horses in NNP under the current Plan will adhere to the three
essential requirements for pest control outlined in the Model Code of Practice for the
Humane Control of Feral Horses (NSW DPI 2005a): necessity, effectiveness and
humaneness. The necessity to control feral horses as soon as possible on both
environmental (before impact increases) and animal welfare grounds (before larger
numbers of horses require harming) was discussed in Section 2.4. Horses are large,
conspicuous and relatively slow breeding animals (in comparison to pests such as rabbits
and foxes) so that a control program initiated while numbers are low also stands a good
chance of being effective in the long term. The management options considered have
been selected to cause the least amount of pain and suffering, to the least number of feral
horses, along with the least harm or risk to non-target species, people and the
environment.
6.1 Feral horse management options
The Model COP for the Humane Control of Feral Horses (NSW DPI 2005a) indicates that
the two control methods most appropriate (in terms of animal welfare and effectiveness) to
the remote western border range areas of NNP are trapping followed by euthanasia at the
trap yard, and aerial shooting. Appendix 2 provides a comparison of the two methods in
relation to operational and animal welfare considerations. The most appropriate control
method will be dependent on a number of factors including:
 site characteristics of the area of NNP being used by the feral horses;
 the number of feral horses present;
 timeframe required for removal of feral horses;
 available resources (human and fiscal);
 available infrastructure (trap yards);
 public and political acceptability of aerial shooting; and
 availability of suitably experienced aerial shooters eg. NSW Feral Animal Aerial
Shooting Team (FAAST) and helicopter.
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6.2 Trapping and euthanasia
Trapping followed by euthanasia at the trap yard will be the primary method employed for
removal of the current population of feral horses inhabiting NNP. Salt blocks were
successful in attracting feral horses to the trap yard at Jack’s Flat in 2004. Other forms of
feed will be trialled as an attractant if salt proves to be ineffective at a particular time or
location.
Trapping and euthanasia will be carried out in accordance with relevant Codes of Practice
(COP) and Standard Operating Procedures (SOP) including the Model COP for the
Welfare of Animals—Killing or Capture, Handling and Marketing of Feral Livestock Animals
(Commonwealth of Australia 2005), Model COP for the Humane Control of Feral Horses
(NSW DPI 2005a) and Standard Operating Procedure (HOR004) trapping of feral horses
(NSW DPI 2005b). The main conditions (from the SOP) under which trapping and
euthanasia will take place are summarised in Text box 1.
Table 1: Conditions for trapping and euthanasia of feral horses in NNP









Trap yard to be large enough to avoid over-crowding, of circular design to avoid
accumulation of animals in corners, and of solid construction (not wire) to avoid
potential for injuries to horses.
Trap yard to be placed where vegetation can provide shelter and shade.
Trap yard to be checked daily.
Any severely injured horses within trap to be killed quickly and humanely (see
below).
Water to be provided in yard, and feed to be supplied if horses held longer than 24
hrs.
Horses not to be held in trap yard for extended periods (not longer than 3 days).
Number of operators to be kept to a minimum to minimise stress to trapped horses.
Horses to be euthanased by head shot (as per diagrams and instructions in SOP).
Death of shot animals to be verified as soon as it is safe for operator to enter yard.
A sedative administered by darting prior to euthanasia by a headshot, will be trialled to
minimise stress to horses within the yard when several horses are captured together.
Removal of horse carcasses from the park may be necessary if drugs used for sedation
pose a risk to native wildlife through secondary poisoning. Carcasses will be removed from
areas within the Cotter Catchment where they could pose a risk of contaminating the
domestic water supply.
6.3 Aerial shooting
An aerial feral horse cull conducted in the Guy Fawkes River National Park in NSW in
2000 attracted considerable media attention and highlighted that shooting feral horses
from helicopters is still opposed by many interest groups within the general community
(English 2000). In the light of this experience, the case for aerial culling of feral horses
within the ACT has been carefully considered prior to this option being included in the
current (2007) Plan. While trapping and euthanasia will be the preferred management
option within NNP the option of aerial shooting will be maintained as a secondary
management technique. This decision has been made in recognition of the possibility that
some horses may be extremely resistant to trapping. In situations where the presence of
Namadgi National Park Feral Horse Management Plan (2007)
14
feral horses is causing unacceptable damage to an environmentally sensitive site (eg. a
Sphagnum bog that provides habitat for the endangered Northern Corroboree Frog) an
alternative, effective technique may be required if horses cannot be trapped easily.
Although unpopular among some sections of the community aerial culling is a humane
technique provided it is carried out by properly trained and accredited shooters following
approved procedures. The mobility of the shooters in a helicopter ensures that, unlike
ground shooting in rough and remote terrain, any wounded horses can be rapidly followed
up and dispatched. In order to maximise the likelihood of a clean kill from the air, aerial
shooting in NNP would be restricted to areas where a clear target sight could be achieved.
It is therefore not an appropriate technique in forested areas.
If required, aerial shooting will be carried out in accordance with to the Model COP for the
Humane Control of Feral Horses (NSW DPI 2005a) and Standard Operating Procedure
(HOR002) aerial shooting of feral horses (NSW DPI 2005c). The main conditions (from
the SOP) under which aerial shooting would take place are summarised in Text box 2.
The FAAST Communications Guide (NSW Department of Agriculture 2003) provides a
useful guide for risk management of aerial shooting operations.
Table 2: Conditions for aerial shooting of feral horses in NNP






Aerial shooting to be undertaken only by appropriately trained, accredited and
experienced professionals (eg. NSW FAAST), using appropriate firearms and
ammunition.
Helicopter pilots used in aerial shooting to be skilled and experienced in aerial
shooting operations.
Aerial shooting to be undertaken only in terrain and vegetation that permits clear
target sighting.
Only chest (heart-lung) or head (brain) shots to be used (as per diagrams in SOP).
Shooter to be certain that each animal is dead before another is targeted – to be
achieved by use of more than one round into target area per animal and immediate
flyback and dispatch of any animal suspected to be wounded rather than killed
outright.
Ground crew to be used to verify death of all horses as soon as possible after
aerial shooting operation.
Namadgi National Park Feral Horse Management Plan (2007)
15
8.0 Monitoring and evaluation of the NNP feral horse management
program
As stated in the 2004 edition of the NNP Feral Horse Management Plan, management of
feral horses in NNP must remain flexible and subject to change as various control methods
are used and assessed. The experience gained in feral horse management in NNP under
this edition (2007) of the Plan will guide any review of management in future plans. The
Plan will also be updated to incorporate any collaborative feral horse management
approach with NSW that results from the development of the KNP Feral Horse
Management Plan.
Regular surveillance (both aerial and ground based) of the western border area of NNP
will continue in order to identify any new feral horse incursions into the park. A register of
observations collected during surveys, and from staff and public reports will be kept at
NNP, and centrally by the Vertebrate Pest Coordinator.
Aerial surveillance of feral horse groups prior to a control operation will be necessary to
record the presence of any foals. It will be essential to account for these animals during
control to ensure that dependent young are not orphaned.
The recovery of sensitive sites that have been damaged by feral horses, including trap
yard sites, will be monitored using fixed photo points. Figure 3 demonstrates the value of
photo point monitoring. It shows the rapid recovery of a flat at Smokers Gap in NNP after
feral horses were removed in 1987.
Figure 3 Recovery of Smokers Gap (NNP) following removal of
feral horses in 1987
Namadgi National Park Feral Horse Management Plan (2007)
16
9.0 References
ACT Government (1998). ACT Nature Conservation Strategy. Department of Urban
Services, Canberra.
ACT Government (2001). Ginini Flats Wetland Site Plan of Management. Conservation
Series No. 18, Department of Urban Services, Canberra.
ACT Government (2002). ACT Vertebrate Pest Management Strategy, Environment ACT,
Canberra.
ACT Government (2004a). Namadgi National Park Feral Horse Management Plan.
ACT Government (2004b). ACT Natural Resources Management Plan 2004-2014.
ACT Government (2004c). Think Water, act Water. Environment ACT, Canberra.
ACT Government (2005). Namadgi National Park Draft Management Plan, Arts, Heritage
and Environment, Canberra.
Beever, E.A., and Brussard, P.F. (2004) Community and landscape-level responses of
reptiles and small mammals to feral horse grazing in the Great Basin. Journal of Arid
Environments. 59, 271-297.
Carey, A., Evans, M., Hann, P., Lintermans, M., MacDonald, T., Ormay, P., Sharp, S.,
Shorthouse, D. and Webb, N. (2003). Technical Report 17 Wildfires in the ACT
2003: Report on initial impacts on natural ecosystems. Environment ACT, Canberra.
Caughley, G. (1976). Wildlife management and the dynamics of ungulate populations. in
Applied Biology. edited by. T. H. Coaker pp 183-246. Academic Press: London.
Cole, D.J., Cohen, N.D, Snowden, K. and Smith, R. (1998). Prevalence of and risk factors
for fecal shedding of Cryptosporidium parvum oocysts in horses. JAVMA, 213 (9).
Commonwealth of Australia (2005). Model Code of Practice for the Welfare of Animals—
Killing or Capture, Handling and Marketing of Feral Livestock Animals.
Dawson, M.J., Lane, C. and Saunders, G. (Eds) (2006). Proceedings of the National Feral
Horse Management Workshop - Canberra, August 2006.
Department of Territories, ACT Parks & Conservation Service (1986). Namadgi National
Park Management Plan, Canberra.
Dobbie W.R., Berman D. McK. and Braysher M.L. (1993). Managing Vertebrate Pests Feral Horses. Department of Primary Industries and Energy – Bureau of Resource
Sciences. Australian Government Publishing Service, Canberra.
Dyring, J. (1990). The Impact of Feral Horses on Sub Alpine and Montane Environments in
Australia. Unpublished M.Sc. Thesis, Department of Resource and Environmental
Science, University of Canberra, ACT.
Namadgi National Park Feral Horse Management Plan (2007)
17
Dyring J. (1993). The Impact of Feral Horses on Sub Alpine and Montane Environments in
Australia. In: Feral Horses in the Alps. Report of a Workshop 1992. Eds B. Walters and M.
Hallam. Australian Alps Liaison Committee.
English, A. W. (2000). Report on the cull of feral horses in Guy Fawkes River National
Park in October 2000. A report prepared for the NSW Minister of the Environment.
English, A. W. (2001). Code of Practice for the Capture and Transport of Feral Horses. A
report on the management of feral horses in National Parks in New South Wales.
Available electronically at
http://www.nationalparks.nsw.gov.au/npws.nsf/Content/English+Reports+on+feral+horse+
management+in+national+parks+and+reserves
Forsyth, D. M. and Caley, P. (2006). Testing the irruptive paradigm of large-herbivore
dynamics. Ecology 87, 297-303.
Higgins, M. (1993). Brumby Running in Namadgi. A report funded by the National Estate
Grants Program.
Hope, G., Wade, A. and Whinam, J. (2003). A report on the state of the mountain mires of
the Australian Capital Territory after fires 14 –22 January 2003. Unpublished report to
Environment ACT.
Jones, B. and Coleman, S. (2006). Animal Welfare – RSPCA perspective. In: Dawson,
M.J., Lane, C. and Saunders, G. (Eds) (2006). Proceedings of the National Feral Horse
Management Workshop - Canberra, August 2006.
Moore, B. (1999). Cotter County – A history of the early, pastoral holdings and events in
and around the County of Cowley, NSW.
NSW Department of Agriculture (2003). The FAAST Communications Guide. NSW
Department of Agriculture.
NSW Department of Primary Industry (2005a). Model Code of Practice for the Humane
Control of Feral Horses. http://www.deh.gov.au/biodiversity/invasive/publications/humane-control
NSW Department of Primary Industry (2005b). Standard Operating Procedure (HOR004)
trapping of feral horses. Available electronically as above.
NSW Department of Primary Industry (2005c). Standard Operating Procedure (HOR002)
aerial shooting of feral horses. Available electronically as above.
NSW NPWS (2003). Horse Management Plan for the Alpine Area of Kosciuszko National
Park. January 2003-January 2005. NSW National Parks and Wildlife Service.
Rogers, G.M. (1991). Kaimanawa feral horses and their environmental impacts. New
Zealand Journal of Ecology. 15, 49-64.
Taylor, U. (1995). Seed dispersal from feral horse manure at Guy Fawkes River
National Park. Department of Ecosystem Management, University of
New England, Armidale, NSW.
Namadgi National Park Feral Horse Management Plan (2007)
18
Walter M (2002). The Population Ecology of Feral Horses in the Australian Alps.
Unpublished Ph.D. Thesis. Applied Ecology Research Group. University of Canberra,
ACT.
Walter M. (2003). The Effect of Fire on Wild Horses in the Australian Alps National Parks –
Post Fire Survey Report, Unpublished report.
Zalba, S.M., and Cozzani, N.C. (2004). The impact of feral horses on grassland bird
communities in Argentina. Animal Conservation. 7, 35-44.
Namadgi National Park Feral Horse Management Plan (2007)
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Appendix: 1 Legislation and policy relevant to feral horse
management in NNP
Commonwealth Legislation
ACT (Planning and Land
Management) Act 1988
(Clth)


Environment Protection
and Biodiversity
Conservation Act 1999



Establishes the National Capital Plan. Sets land use
guidelines for NNP including the wilderness area and water
resource sub-catchments, and policies for their
management.
Recognises water as the primary value of the water
resource catchments in the park and states that other uses
must be compatible and secondary to the primary value of
water.
Establishes a Commonwealth process for assessment of
proposed actions that are likely to have a significant impact
on matters of national environmental significance or on
Commonwealth land.
In NNP this includes the Ginini Flats Wetlands, nationally
listed threatened species and ecological communities, and
listed migratory species.
Covers heritage places that are listed on the National
Heritage List. A process of nomination to this list is currently
underway for the Australian Alps National Parks, of which
NNP is a part.
ACT Legislation
Nature Conservation Act
1980


Pest Plants and Animals
Act 2005


The Land (Planning and
Environment) Act 1991
Environment Protection
Act 1997

Water Resources Act
1998
Animal Welfare Act 1992



Provides for wildlife protection and regulating activities
within the ACT.
Provides for the preparation of Threatened Species Action
Plans. The Action Plan for the Northern Corroboree Frog
(Pseudophryne pengilleyi) lists trampling of wetlands by
feral horses as a potential threat for the species in the ACT.
Provides for the declaration and management of pest
plants and animals.
Feral horses are not a declared pest animal under this Act
as they are restricted to NNP and are not established
across a range of land tenures.
Instrument under which Public Land is reserved and
management plans prepared.
Provides for environmental protection through a range of
measures aimed principally at activities that could harm the
environment.
Provides for the management of the water resources of the
Territory and for related purposes.
Provides for the promotion of animal welfare.
Namadgi National Park Feral Horse Management Plan (2007)
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International agreements
Japan-Australia
(JAMBA) and ChinaAustralia Migratory Bird
Agreements (CAMBA)

Convention on Wetlands
(Ramsar, Iran 1971)

Commit the governments involved to protect listed
endangered and migratory bird species and their habitats.
Lathams Snipe (Gallinago hardwickii) is listed under
JAMBA and CAMBA and over-winters at Ginini Flats and
other sub-alpine wetlands.
Intergovernmental treaty to which Australia is a signatory.
Ginini Wetlands is a designated Ramsar site.
Other agreements

Australian Alps National
Parks Agreement
Memorandum of Understanding between the
Commonwealth, ACT, NSW and Victorian governments to
guide the determination and implementation of bestpractice management of the Alpine parks.
ACT policy documents and guidelines
ACT Vertebrate Pest
Management Strategy
Namadgi National Park
Management Plan
(1986)
Namadgi National Park
Draft Management Plan
(2005)
Ginini Flats Wetland Site
Plan of Management
(ACT Government 2001)
ACT Wetlands Policy (in
preparation)
ACT Nature
Conservation Strategy
(ACT Government 1998)
ACT Natural Resources
Management (NRM)
Plan 2004-2014 (ACT
Government 2004b)
Think Water, act Water
(ACT Government
2004c)
Provides guidance on the strategic approach to pest
management programs and identifies feral horses as a pest
issue in the ACT.
Lists horses and other feral livestock as priorities for control
due to impacts including ground and vegetation disturbance,
and competition with native animals.
Places a high priority on eradication of feral horses from
sensitive sub-alpine areas, particularly wetlands that provide an
important hydrological function for Canberra’s water supply.
Provides actions to protect and manage the site and its
immediate catchment (prepared as part of a government
commitment to the Convention on Wetlands).
Strategy for the management and conservation of ACT
wetlands.
Provides a framework for a coordinated and strategic approach
to the protection of biodiversity and the maintenance of
underpinning ecological processes.
Sets the strategic framework for natural resource investment in
the Territory that aligns with the National Framework for NRM
Standards and Targets.
Guiding document for the Natural Heritage Trust and National
Action Plan for Salinity and Water Quality investment
programs.
Strategy for sustainable water resources management.
Provides strategic direction for the long-term management of
the Territory’s water resources.
Namadgi National Park Feral Horse Management Plan (2007)
21
Codes of Practice (COP)
Model COP for the
Welfare of AnimalsKilling or Capture,
Handling and Marketing
of Feral Livestock
Animals
Model COP for the
Humane Control of Feral
Horses (NSW DPI
2005a)
COP for the Capture and
Transport of Feral
Horses
Provides guidelines to promote improved welfare for feral
livestock captured for domestication or abattoir slaughter or
which are killed in control programs or in field harvesting.
Provides information on best practice management, control
strategies, species biology and impact, and the humaneness of
current control methods. This COP is currently being
considered for national adoption.
Developed as part of a report on the management of feral
horses in National Parks in New South Wales (English 2001).
Appendix 2: Comparison of the main control options for feral
horses in NNP
Consideration
Animal welfare
Operator safety
Trap and euthanase at
yards
Humane control method
provided trap yards
checked daily and
euthanasia is performed in
a manner that limits stress
to the trapped animals.
Relatively safe technique
provided operators do not
enter the trap yard with live
horses present.
Contract or ‘inhouse’ operation
Could be carried out using
the skills of existing staff.
Infrastructure set
up required
Trap yard in place at Jack’s
Flat. Trap yard would
require moving or additional
yards building for trapping
at other locations eg.
Bimberi Flat.
Not particularly efficient,
especially at remote
locations that are not
accessible by vehicle.
Several trapping events
required to remove larger
groups. Any trap shy
Efficiency
Aerial shoot
Humane when carried out by
experienced operators and the animal
can be clearly seen. Any wounded
horses must be followed up and
dispatched rapidly.
Shooting from helicopters is
hazardous but risks can be minimised
by using experienced pilots, and
trained, experienced shooters such
as Feral Animal Aerial Shooting
Team (FAAST).
Contractor would be used as there is
insufficient requirement for aerial
shooting in the ACT for staff to gain
regular experience.
No infrastructure required.
Potentially very efficient. Likely to
remove all horses from a group at
one time unless some horses move
across NSW border during the
operation. Not humane or effective in
areas of heavy cover eg. forest, since
horses may be concealed and difficult
Namadgi National Park Feral Horse Management Plan (2007)
22
Ability to remove
horses rapidly from
environmentally
sensitive sites
Carcass removal
Acceptability to
‘concerned’ public
animals will remain. Trap
requires daily checking.
Unlikely to achieve rapid
removal. Potential to
exacerbate environmental
damage in immediate
vicinity of yard during
trapping operation.
Remove from the vicinity of
yards to prevent deterrence
of further horses entering
the trap. May require
removal from NNP if drugs
used for sedation prior to
head shooting are likely to
cause secondary poisoning
of scavenging animals.
Remove from water
catchment.
Probably more acceptable
than aerial shooting.
to locate from the air.
Rapid removal achievable if
arrangements/approvals to engage
aerial shooters have been made in
advance and horses are in an area
where aerial shooting is appropriate
(see above).
Remove from water catchment.
Has low acceptability in some sectors
despite being a humane technique for
euthanasia in remote areas.
Namadgi National Park Feral Horse Management Plan (2007)
23