Statement of intent – Draft Water Plan (Pioneer Valley) 2025 – s46 of the Water Act 2000

This statement of intent is published, under section 46 of the Water Act 2000 (the Act), by Minister for Local Government and Water and Minister for Fire, Disaster Recovery and Volunteers to inform the public of the intent and effect of the draft water plan.

The Queensland Government has prepared a draft Pioneer Valley water plan (PDF, 1.3MB) (draft water plan) which is proposed to replace the existing Water Plan (Pioneer Valley) 2002 (existing water plan).

To support the draft water plan, a draft Pioneer Valley water management protocol (PDF, 656KB) (draft protocol) and a draft Pioneer Valley water entitlement notice (PDF, 1.1MB) (draft WEN) have also been developed for consultation.

This statement outlines the intent and effect of the draft water plan, by identifying the proposed changes and their purpose from the current provisions of the existing water plan and invites feedback from the public.

You can read more about the water plan area and how the draft water plan was developed, including the updated science used to inform the draft.

Overview of changes

Improving outcomes

The draft Pioneer Valley water plan (PDF, 1.3MB) specifies improved outcomes that we want to achieve through targeted strategies set out in the water plan. These outcomes focus on achieving a balance between different, and sometimes competing, water needs.

The outcomes proposed in the draft water plan have been developed in line with contemporary state-wide standards for economic, social, environmental and cultural needs. Other outcomes have also been included to address issues specific to the Pioneer Valley water plan area, including mitigating seawater intrusion risks and ensuring freshwater flows to the Great Barrier Reef.

You can read the proposed outcomes in Part 3 of the draft water plan.

Setting plan objectives

The draft water plan contains new performance indicators and objectives which maintain a level of protection for water allocation holders and environmental flow requirements comparable to the existing water plan. A performance indicator uses hydrological modelling to show if a water plan objective is being met by management actions, helping with decision-making.

Water allocation security objectives guide decisions about how water is shared. For both surface and underground water we use a performance ratio to measure this. Using hydrological modelling, the performance ratio compares the average amount of water available to users under a proposed decision. It ensures water users rights are protected while also providing more flexibility in potential trading.

The proposed environmental flow objectives use improved science, including eco-hydrological and water management scenario modelling to provide for key ecological water flow needs throughout the water plan area. Performance indicators consider factors like flow magnitude, timing, and seasonality, at assessment points (nodes) to guide local decisions. Setting environmental flow objectives and performance indicators helps protect key environmental assets and processes.

You can read the proposed plan objectives in Part 4 of the draft water plan.

Identifying unallocated water

Unallocated water is water that is in the system and can be released (or allocated) to future projects without affecting water available for current water users, cultural values, or the environment.

Right now, the existing water plan includes 14,500ML of unallocated water. Engagement to date indicates the current volume of unallocated water meets predicted demand for additional water.

The draft water plan identifies 14,500 ML of unallocated water reserves remains available. The updated hydrological modelling provides a greater level of confidence that this is the average amount of water available in the long term, rather than the maximum annual limit. This means the unallocated water reserves have now been expressed as an average annual volume. The actual volume available each year varies depending on the climate, surrounding water use and the conditions of each entitlement.

Using an average annual volume to define unallocated water reserves better defines the water available and can provide more flexibility when releasing unallocated water.

You can read the proposed unallocated water reserves in Part 7 of the draft water plan and Chapter 2 of the water management protocol.

Underground water management

The detailed review of the existing water plan confirmed that the current strategies for managing groundwater in the water plan area are effective and well-founded. As a result, no significant changes have been made to groundwater management in the draft water plan. All current water access arrangements will continue to apply, and no reduction in access will occur.

In coastal areas of the water plan area, groundwater is carefully managed to help mitigate the risk of seawater intrusion.

Seawater intrusion is when saltwater from the ocean infiltrates the freshwater aquifers and reduces the availability and quality of freshwater.

The draft water plan and water management protocol continues existing arrangements for groundwater licences in some coastal areas with a high risk of seawater intrusion (i.e. licences in zones 11A, 11B, 12A, 12B, 13A, 13B, 15A, 15B 15BA and 15C). Groundwater users within these zones can continue to access groundwater through water allocations only. Accessing groundwater through water licences in these zones is not provided for in the current water plan or water management protocol. The draft water management protocol continues this strategy to protect existing allocation holders from the impacts of seawater intrusion.

The draft water plan will provide access to groundwater for low-risk certain activities outside areas impacted by seawater intrusion or urban development. For example:

using groundwater for stock or domestic purposes
taking water for activities listed in Schedule 3 of the Water Regulation (2016), if the volume is no more than 5ML
activities for the economic benefit of Traditional Owners, if the volume is less than 5ML.

Surface water management

The detailed review of the existing water plan confirmed that the current strategies for managing surface water in the water plan area are effective and well-founded. As a result, no significant changes have been made to surface water management in the draft water plan. All current water access arrangements will continue to apply, and no reduction in access will occur.

The draft water plan will also provide access to surface water for certain low-risk activities in watercourses outside of existing water supply schemes. For example:

Taking water for activities listed in Schedule 3 of the Water Regulation (2016), if the volume is no more than 5ML .
Activities for the economic benefit of Traditional Owners, if the volume is no more than 5ML.

As part of the water plan review, an assessment of the take of overland flow water in the Pioneer Valley area found it poses a low risk to both existing water users and the environment. Based on these findings, no changes to the management of overland flow have been proposed in the draft water plan.

Community connection and water

We engaged with Aboriginal and Torres Strait Islander peoples to ensure we have a better understanding of cultural water needs, social and economic aspirations. This resulted in:

dedicated cultural outcomes which support the cultural values and aspirations of Traditional Owners.
new provisions which support the needs of Traditional Owners to take up to 5ML of water for low-risk economic use in areas not impacted by seawater intrusion, urban development or used as part of a water supply scheme.

Traditional Owners, along with the broader Aboriginal and Torres Strait Islander community, may also access unallocated water through the general unallocated reserves.

Water trading

Water can be traded either permanently or temporarily on a seasonal basis (called a seasonal water assignment).

Water trading allows:

current water users to buy and sell water to suit their business.
new businesses to buy water.

There are two water markets currently in the plan area:

water allocation market (permanent trading)
seasonal water assignment market (temporary trading).

The review of the existing water plan confirmed that the current management strategies for surface water in the plan area are set to provide as much flexibility as possible, while maintaining the balance of economic, social, environmental and cultural water needs. As a result, no significant changes have been made to water trading in the draft water plan.

Have your say

We are now accepting submissions. I encourage anyone with an interest to put forward their thoughts on water resource management in the draft water plan through a submission.

Submissions can be made by completing the online form, emailing or posting a completed form or written submission.

This notice is dated 3 November 2025.

The Hon. Ann Leahy MP
Minister for Local Government and Water and Minister for Fire, Disaster Recovery and Volunteers

Ingrid Fomiatti Minnesma
Executive Director North Region (as the Chief Executive’s delegate)