Future Direction of Outdoor Pursuits in WA - Australian Sports ...

Future Direction of 

Outdoor Pursuits in WA

Acknowlegements 

In appreciation of the contribution and patience of the many individuals and 

stakeholder groups supporting the development of these future directions for 

outdoor pursuits in Western Australia. 

Thank you to the following Reference Group members for their contribution, 

particularly within the early deliberations in the formation of this report: Len Pavy 

(Chair), Dave Boldy, David Byers, Sarah Fletcher, Simon Hanson, Terry Hewett, 

Bert O’Meagher, Rohan Swan, Mark Tait and Peter Nidd (Executive support). 

ISBN: 0-9585960-2-6 

© Department of Sport and Recreation, December 2002 

Perry Lakes Stadium, Meagher Drive, Floreat 

PO Box 66, Wembley, Western Australia 6913 

Phone: (08) 9387 9700 Fax: (08) 9387 9726 Email: info@dsr.wa.gov.au 

Future Direction of Outdoor Pursuits in WA 

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Contents 

Executive Summary .................................................................................... 5 

1 Terms of Reference and Methodology .................................................. 9 

2 Outdoor Pursuits: An Overview ........................................................... 11 

Definition ................................................................................................ 11 

What characterises outdoor pursuits? ..................................................... 11 

Trends in participation............................................................................. 12 

Structure of outdoor pursuits in WA ......................................................... 12 

Stakeholder interests............................................................................... 13 

3 Findings and Issues Arising .................................................................. 15 

Applying regulation to outdoor pursuits .................................................. 15 

Who would regulation/legislation apply to?.............................................. 17 

What regulation strategies already exist in WA? ..................................... 17 

Interstate and international comparisons ................................................ 19 

Self regulation ........................................................................................ 19 

4 Strategies and Recommendations ....................................................... 20 

Appendix 1 

Excerpt from the Coroner’s report on the Hartfield inquest ...................... 26 

Appendix 2 

Overview of outdoor pursuits regulation in WA, interstate 

and internationally................................................................................... 27 

Glossary of Terms ................................................................................. 31 

References............................................................................................. 32 

Useful Additional Reading .................................................................... 34 

Future Direction of Outdoor Pursuits in WA

Executive Summary 

Introduction 

Given the increasing interest of Western Australians in a diverse range of outdoor pursuits, and 

the disparate nature of service providers, it was deemed timely to consider approaches to the 

future management and control of outdoor pursuits activities in this State. The need for this 

Review was reinforced by the Coroner’s report and findings into the death of Kristy Hartfield 

from injuries incurred while engaging in the outdoor pursuits activity of abseiling 1 . 

This Review has been undertaken by the Department of Sport and Recreation under the 

guidance of a reference group with the following terms of reference: 

• undertake a comparative analysis of approaches to the management/control of outdoor 

pursuits activities both interstate and internationally; 

• address the issues raised by the Coroner in the Hartfield Inquest; and 

• identify aspects of required legislation/regulation; improved practices/processes to ensure 

outdoor pursuits will be predominantly incident free. 

Whilst the focus within the terms of reference addressed the issues of regulation within outdoor 

pursuits, it was opportune to concurrently identify related key strategic issues needing to be 

addressed in the medium term. The emergence of risk management, public liability and tort 

law reform deliberations in 2001 2 3 4 , have significantly affected sport, recreation and outdoor 

activity participation. 

Definition 

Outdoor pursuits are defined as outdoor recreation activities utilising the natural environment 

that contain elements of real or apparent danger, in which the outcome can be influenced by 

the participant and circumstance. 

Specific examples include: caving, rafting, abseiling, canoeing, rock climbing, bushwalking, 

ropes courses and sea kayaking. A range of stakeholder groups, including schools, community 

groups, government and non-government service providers and private businesses, deliver 

outdoor pursuits in Western Australia. 

Key Findings 

The last four years have seen an evolution in the management and structures of organisations 

involved in the coordination and delivery of outdoor pursuits. Major impacts include: 

• national developments in education and training brought about through the National Training 

Reform Agenda; 

• establishment of Outdoors WA as the recognised peak body for outdoor pursuits in Western 

Australia, which has provided a much needed forum for service providers to address selfregulation 

and advocacy requirements; 

• the Hartfield Inquest; and 

1 ‘Record of Investigation in Death of Kristy Rose Hartfield’, SM McGuire, Coroner, 8 September 1998, ref. No. 46/98. 

2 ‘Review of Australian Sports Insurance, ‘ Rigby Cook Lawyers; Summary of a report prepared for the Sport and Recreation Minister’s 

Council, March 2002, Standing Committee on Sport and Recreation (SCORS). 

3 ‘Public Liability Insurance: Practical Proposals for Reform’, Report to the Insurance Issues Working Group of Heads of Treasuries, 

Trowbridge Consulting, 15 May 2002. 

4 ‘Review of the Law of Negligence Report’, Chaired by the Honourable Justice David Ipp, August 2002. 


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• the debate on public liability and Tort law reforms and the subsequent introduction of 

legislation 5 . 

Strategies and initiatives already in place, or being implemented in Western Australia, that 

governs the successful organisation and management of outdoor pursuits fall into the following 

broad areas: 

• leader and organisational accreditation; 

• education and training; 

• registration and membership; and 

• risk management policies and practices. 

Outdoor pursuits stakeholders support a move towards responsible industry self-regulation, 

alongside careful monitoring and support by government. This self-regulation would involve a 

number of principles and elements, including: 

• genuine co-operation and collaboration between stakeholder groups; 

• establishment of a sector reference group, inclusive of major stakeholder groups, to monitor 

planning, progress and education forums; 

• strengthening of peak governing body to advance steps already taken; 

• peak body to work with outdoor pursuits providers; 

• implementation of national industry education/training programs and other accreditation 

developments; 

• adoption of quality improvement models; and 

• appropriate funding and resourcing to achieve the above. 

Strategies and Recommendations 

The following strategies and recommendations, developed in consultation with outdoor pursuits 

stakeholders, will supplement existing initiatives to support future direction and growth of 

outdoor pursuits in WA. 

Strategy 1 – Adoption of Risk Management Policies and Procedures 

RECOMMENDATION 1 

That all outdoor pursuit providers adopt formal risk management policies and plans, in 

accordance with Standards Australia’s ‘National Risk Management Guidelines for Sport’ with 

reference to the Australian Standard on Risk Management AS/NZS 4360/1999, and Tort law 

reforms 6 currently being finalised by the Western Australian Government. 


That the Department of Sport and Recreation extend its child protection and harassment 

education programs to reach outdoor pursuits practitioners. 

5 The ‘Volunteer Protection Bill 2002’, the ‘Insurance Commission of WA Amendment Bill 2002’ and the ‘Civil Liability Bill 2002’ 

have been introduced into the Western Australian Parliament in 2002. 

6 Tort Law Reforms refers to the ‘Volunteer Protection Bill 2002’, the ‘Civil Liability Bill 2002’ and the ‘Insurance Commission of 

WA Amendment Bill 2002’ that have been introduced into Parliament in 2002. 


Strategy 2 – Leader and Organisational Accreditation 


That the National Outdoor Leader Registration Scheme (NOLRS) and Organisational 

Accreditation Scheme (OAS) be implemented in Western Australia, managed by Outdoors 

WA 7 , as per the recommendations outlined in the Outdoors WA Feasibility on the 

Implementation of Abseiling Assessment Panel/NOLRS/OAS report 8 . 


That key outdoor pursuits stakeholders (private, public and community sector) in Western 

Australia examine the Australian Campsite and Outdoor Activity Provider Accreditation 

(ACOAPA) program with a view to immediate implementation of the scheme. 

Strategy 3 – Education and Training Initiatives 


That Government and land owners/managers recognise courses delivered by Registered 

Training Organisations (RTO) under the National Training Framework including the Abseiling 

Instructor course first offered by an RTO in July 2002. 

Strategy 4 – Implementation of a State Assessment Panel (or equivalent) 


That Outdoors WA is recognised and resourced as the peak governing body overseeing the 

establishment of a State Assessment Panel (or equivalent) responsible for: 

• accreditation of organisations/service providers; 

• recognition of current competency standards; and 

• registration and licensing of leaders and operators. 

Strategy 5 – Code of Ethics 


That Outdoors WA, in association with the Department of Sport and Recreation, implement a 

a Code of Ethics to promote acceptable behaviours, service levels and standards within the 

industry. 

7 There is significant onus on Outdoors WA taking a lead role in implementing a number of the recommendations within this report. 

It is clearly understood that Outdoors WA, as a voluntary body, within their current resourcing capacity will not be able to undertake 

implementation as directed without adequate resourcing. 

8 ‘Outdoors WA Feasibility: The Implementation of AAP/NOLRS/OAS in WA’, Department of Sport and Recreation, May 2002. 


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Strategy 6 – Public Liability Reforms 


That Government consult / inform outdoor pursuits stakeholders regarding Stage 2 Tort Law 

reforms 9 to bring improved clarity and balance on key duty of care issues (eg. risk warnings, 

waivers, negligence definitions etc.). 

Strategy 7 – Cross Government Coordination 


That a standing Outdoor Pursuits Working Party with representatives from the Departments 

of Conservation and Land Management, Education, Tourism, Sport and Recreation and 

outdoor pursuits representatives be convened biannually to address the following standing 

agenda items: 

• site access and survey considerations; 

• improved policy formulation on issues affecting outdoor pursuits service providers; 

• improved advocacy for outdoor pursuits service providers, recognising the social and 

economic contribution they are collectively providing to the community; and 

• improved resources and support to enable Outdoors WA to assist government 

departments in policy and operational matters in discharging their respective briefs 

e.g. education, recreation, conservation. 

Successful implementation of these recommendations will require: 

• stakeholders (service providers, government and peak bodies) committed to quality 

improvement in contributing to a regulatory framework, embracing codes of conduct and 

professional development; 

• commitment by Government to provide coordinated and professional response to the 

various government and community interests; 

• strong partnerships between the service providers, government and peak bodies; and 

• increased access to funding and consultancy support to peak bodies, based on the unique 

characteristics of outdoor pursuits. 

These four key principles together will ensure that outdoor pursuits in WA will continue to meet 

community expectations and outcomes of service providers, peak bodies and government. 

9 Stage 2 Tort Law reforms refers to further legislative reforms regarding voluntary assumption of risk 

(i.e. strengthening waivers) pending deliberations of a nationally convened review of negligence (Ipp 

Report) and amendments to the Commonwealth’s Trade Practices Act 1974. 


1. Terms of Reference and Methodology 

Background 

Given the increasing interest of Western Australians in a diverse range of outdoor pursuits, and 

the disparate nature of service providers, it was deemed timely to consider approaches to the 

future management and control of outdoor pursuits activities in this State. The need for this 

Review was reinforced by the Coroner’s report and findings into the death of Kristy Hartfield 

from injuries incurred while engaging in the outdoor pursuits activity of abseiling 10 . 

In 1988, the Department of Sport and Recreation convened a reference group and initiated 

an inquiry in response to Coroner’s findings in the Hartfield Inquest with the following terms of 

reference. 

Terms of Reference 

1. To undertake a comparative analysis of approaches to the management/control of outdoor 

pursuits activities in a sample of other countries (eg. United Kingdom, USA, Canada, New 

Zealand, Germany, France) and interstate. The analysis to include consideration of: 

a. accreditation/licensing of instructors/service providers; 

b. curriculum content and operator practices; and 

c. site access and survey. 

The comparative analysis should provide an overview of management and control strategies 

that are currently being implemented across a range of outdoor pursuits activities and 

should incorporate the specific issues raised by the Coroner in the Hartfield Inquest (the 

items listed (a) to (o) in his findings). 

2. Based on assessment of information in Point 1 above, identify any aspects: 

a. which may require some form of legislation/regulation; 

b. which may require consideration of alternative/improved practices, processes and or 

approaches; and 

c. to ensure that, when undertaken responsibly, outdoor pursuits will predominantly be 

incident free. 

Whilst the focus within the terms of reference addressed the issues of regulation within outdoor 

pursuits, it was opportune to concurrently identify related key strategic issues needing to 

be addressed in the medium term. The emergence of risk management, public liability and 

tort law reform deliberations in 2001 11 12 13 , have significantly affected sport, recreation and 

outdoor activity participation. Several of the recommendations therefore respond to broader 

organisational and structural issues requiring reform and/or improvement. 


11 ‘Review of Australian Sports Insurance, ‘ Rigby Cook Lawyers; Summary of a report prepared for the Sport and Recreation Minister’s 

Council, March 2002, Standing Committee on Sport and Recreation (SCORS). 

12 ‘Public Liability Insurance: Practical Proposals for Reform’, Report to the Insurance Issues Working Group of Heads of Treasuries, 

Trowbridge Consulting, 15 May 2002. 

13 ‘Review of the Law of Negligence Report’, Chaired by the Honourable Justice David Ipp, August 2002. 


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Reference Group 

The reference group consisted of outdoor pursuits representatives from commercial, education 

and organisational interest areas. 

The reference group’s primary deliberations addressed specific issues raised by the 

Coroner in the Hartfield Inquest regarding technical aspects of abseiling practices. With the 

broadened scope of the review (as mentioned above), additional expertise was sought from 

key individuals and relevant bodies, such as Outdoors WA. 

The extended time frame in finalising this report was a direct consequence of the shift of 

emphasis of the review toward the development of a framework for the future management 

coordination of the outdoor pursuits in WA. 

Research 

In order to ascertain an overall status and history of outdoor pursuits regulation within Western 

Australia, interstate and internationally, the following was undertaken: 

• interviews with key stakeholders including representatives from the service providers, 

government and peak governing bodies; 

• extensive literature review; and 

• online research. 

Subsequently, an overall status of outdoor pursuits regulation within the State was determined, 

together with a comparative analysis with other states/territories and several other countries. 

The following areas were also reviewed to determine level and type of regulation/management 

and whether regulation measures were primarily self, or government regulated: 

• site access and safety; 


• accreditation and registration; 

• risk management policies and procedures; and 

• insurance requirements. 

Based on the literature review scanning and consultation with outdoor pursuits providers 

a range of strategies and recommendations has been developed supporting the future 

development of outdoor pursuits in WA. 


2. Outdoor Pursuits: An Overview 

Definition 

For the purpose of this report, outdoor pursuits are defined as outdoor recreation activities 

utilising the natural environment that contain elements of real or apparent danger, in which the 

outcome can be influenced by the participant and circumstance. 14 

Examples of outdoor pursuits include: abseiling, caving, canoeing, rafting, rock climbing, ropes 

courses and sea kayaking, to name a few. 

What characterises outdoor pursuits? 

Outdoor pursuits afford participants the opportunity to experience the excitement and personal 

involvement in an outdoor setting which is often lacking in our traditional recreational or 

educational systems. 

Outdoor pursuits may be sought in terms of structured experiences, such as formal classes 

and programs, or non-structured experiences - activities done on an individual basis with family 

and/or friends whenever one chooses. Regardless, there are numerous potential benefits of 

engaging in outdoor pursuits activities (Table 1 15 .) 

Table 1 

Potential Benefits of Outdoor Pursuits Activities 

Psychological Sociological Educational Physical 

Self-concept Compassion Outdoor education Health/fitness 

Confidence Group cooperation Nature awareness Skills 

Self-efficacy Respect for others Problem Solving Strength 

Personal testing Communication Outdoor techniques Coordination 

Well being Belonging Value clarification Physical activity 

Actualisation Friendship Conservation education Balance 

Sensation seeking Behaviour feedback 

Outdoor pursuits are well established in our educational and community participation practices. 

For example: 

• many primary and secondary schools offer outdoor education programs as an integral part 

of the personal growth and learning processes; 

• many countries, including Australia, successfully offer outdoor adventure experiences to 

adolescent offenders and youth at risk; 

• outdoor skills are an integral part of training for the various emergency services, and 

professions involving exposure to the outdoors, such as maritime, parks and wildlife, 

forestry, armed services etc; 

• eco-tourism is increasingly promoted for domestic and international tourists; and 

• camps and adventure programs are popular strategies for personal development and team 

building initiatives by corporations and government. 

14 ‘Outdoor adventure pursuits: foundations, models and theories,’ pg.6, A.W. Ewert, 1989. 

15 ‘Outdoor adventure pursuits: foundations, models and theories,’ pg. 49, A.W. Ewert, 1989. 


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Trends in participation 

The following participation trends are relevant to outdoor pursuits: 

• Less club-based participation – A move away from club membership, loyalty, 

volunteerism, time dedicated to a single activity or club is evident. Increasing preference 

is for sampling many activities with minimal ongoing commitment. This has led to increased 

popularity of individual activities, such as climbing, canoeing, etc. in both outdoor and 

indoor environments. 

• Individual and group participation - Land managers are observing participation from 

both organised groups with accredited instructors and leaders (structured participation), 

and from individuals and small informal groups seeking their own adventure (non-structured 

participation). There is a definite change in the balance towards fewer groups and more 

individual and informal pursuit of outdoor activities such as trail walking, scuba, canoeing, 

and cycling. 

• Economic benefit - Annual household expenditure on sport and recreation is running at 

$7.335 billion nationally (1998/99 ABS data), of which a large, but unspecified, proportion is 

attributable to outdoor pursuits. 16 

• Policy shifts – Local governments and community groups are taking an increasing 

management role in outdoor pursuits, as it is an opportunity to explore diversification 

strategies in their regions. Policy changes in primary industries and other land use issues 

are driving outdoor pursuits and tourism to become an increasingly important regional 

socio-economic factor. 

Structure of outdoor pursuits in WA 

Outdoor pursuits occur in any, or a combination of natural environments, including land, water 

and air, hence management and organisation of activities is complex in structure. Governance, 

management and coordination of outdoor pursuits is disparate involving numerous government 

agencies, service providers (commercial and not-for-profit) and relevant peak bodies. Ongoing 

access to, and participation in outdoor pursuits is reliant on the development of effective 

relationships/partnerships between these relevant stakeholders. 

Government 

Government has a responsibility for the governance, management and standards related to 

outdoor pursuits that can directly influence access to and participation in outdoor pursuits 

activities. These responsibilities include, but are not limited to, the following government 

agencies: 

• Department of Sport and Recreation (e.g. organisational development for peak governing 

bodies; policy development for industry standards/guidelines); 

• Department of Conservation and Land Management (e.g. provides access and conversation 

of Crown land and natural environments; industry standards); 

• Department of Planning and Infrastructure (e.g. regulation and registration of recreational 

boating); 

16 ‘Sport and Recreation: A Statistical Overview, Australia, 1997,’ Australian Bureau of Statistics, ABS Publication Cat no. 4156.0. 


• conservation Commission of WA (e.g. creation of facilities for the enjoyment of the natural 

environment by the community); 

• lotteries Commission of WA (e.g. funding support to not-for-profit service providers for 

programs, events and trails development) 

• water and Rivers Commission (e.g. determines recreational access to lands adjoining 

ground water resources); and 

• local governments (e.g. planning and infrastructure considerations/resources). 

Outdoor Pursuits Service Providers 

A significant number of organisations deliver events, programs, courses, recreational and/or 

social opportunities that are considered outdoor pursuits activities. These providers are largely 

small business, either in profit and not-for-profit operations, including: 

• school and tertiary education institutions; 

• commercial enterprise; 

• community service groups – e.g. the Scouting movement, Scripture Union; and 

• non-profit associations – e.g. Bibbulmun Track Foundation, Canoeing WA. 

Peak Bodies/Associations 

To support the development and conduct of outdoor pursuits activities, there is a range of 

non-profit governing bodies responsible. These bodies coordinate and promote activities for 

participants and provide leadership, advocacy and direction in standards, training support, and 

member servicing. At present, these associations are: 

• industry peak bodies (e.g. Outdoors WA; Parks and Leisure Australia, WA Branch); 

• state sporting associations (e.g. Canoeing WA, Hang Gliders Association of WA); 

• state outdoor recreation associations (e.g. Climbers Association of WA, WA Mountain Bike 

Association); and 

• volunteer/community based action groups (e.g. Bibbulmun Track Foundation, Friends of the 

Cape to Cape Track). 

Stakeholder interests 

There are a number of different, and sometimes competing interests among outdoor pursuits 

stakeholder groups in Western Australia. Although not an exclusive list, the following identifies 

a number of key stakeholder groups and their areas of interest: 

Schools and the Community 

• Safe, yet challenging activities for children and families. 

• Development of skills and self-esteem. 

• Achievement of student learning outcomes through outdoor experiential activities. 

• Greater access to a diverse range of outdoor pursuits alternatives. 


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Business 

• Characterised by a range of small business operators providing a diverse range of niche 

market outdoor pursuits activities (participation options, corporate team and staff building, 

experiential programs, ecotourism). 

• Driven by actuarial realities and global demands. 

• Highly competitive marketplace, labour intensive with high imposts of training/accreditation 

and ongoing equipment replacement. 

• Highly competitive retail markets. 

Government 

• Increasing opportunities for active participation. 

• Policy development and implementation. 

• Development and promotion of best practice and standards. 

• Safe participation environments for participants and employees. 


3. Findings and Issues Arising 

Applying regulation to outdoor pursuits 

Options available in for the regulation of outdoor pursuits in WA, include: 

• self-regulation; 

• full licensing, supported by government policy and legislation; and/or 

• status quo/do nothing. 

To maintain the status quo is not acceptable and will not address current and emerging pubic 

liability, risk management issues and future development of outdoor pursuits activities. To 

ensure there is ongoing access to safe environments for participation in outdoor pursuits, 

regulation and/or improved procedures in the following areas should be addressed: 


• accreditation of leaders and registration of service providers; 

• risk management policies and procedures; 

• insurance requirements; and 

• site access and safety. 

Benefits 

Regulation and improved practices within the outdoor pursuits industry can: 

• Provide a focus on safety standards. 

• Reinforce the environmental values associated with outdoor pursuits activities, such as 

environmental awareness and conservation. 

• Establish enforcement and compliance mechanisms and structures which could ultimately 

help the industry grow in professionalism and participation. 

• Help eliminate small and independent operators who are not prepared to accept minimum 

standards or costs associated with regulation. 

• Provide managed access to natural environments. 

• Clarify the roles and responsibilities of the different stakeholders in the activities concerned. 

• Illustrate governments’ preparedness to act on community concerns and promote consumer 

confidence. 

Disadvantages 

The disadvantages of regulation (specifically legislation) within outdoor pursuits may include: 

• Difficulty for legislation to be prescriptive enough to cover the broad range of activities, 

practices, and circumstances characteristic of outdoors pursuits without affecting the 

individuals’ rights to act freely. It could, effectively, ‘dumb down’ the sector. 

• Enforcement and compliance would involve the setting up of costly and time-consuming 

administration within government and other stakeholder groups. 

• The lengthy and onerous process of developing the legislation would distract from the tasks 

of ‘industry’ service quality improvement. 

• Overly prescriptive policies could lead to the banning and outlawing of many existing 

informal activities, or a reduction in the number of activities provided by commercial and 

community service groups. 


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• Nomination of prescribed sites via legislation requires constant monitoring by land managers 

which utilises a significant allocation of resources, especially considering the changing nature 

of the outdoor environment. Ultimately, this may lead to a reduced number of approved sites, 

but would not necessarily be adhered to by informal participants. 

• The inability of stakeholders to agree on what criteria can or cannot be validly and reliably 

judged by a certifying agent – therefore, what is a reliable indicator of outdoor leadership ability? 

• Certification decisions are based upon human judgement 17 , and may result in inconsistent 

outcomes. 

What is the Current Status of Regulation for Outdoor Pursuits in WA? 

The last four years have seen an evolution in the management and structures of organisations 

involved in the coordination and delivery of outdoor pursuits. Major changes include: 

• national developments in education and training brought about through the National Training 

Reform Agenda; 

• establishment of Outdoors WA as the recognised peak body for outdoor pursuits in Western 

Australia, which has provided a much needed forum for service providers to address selfregulation 

and advocacy requirements; 

• the Hartfield Inquest 18 ; and 

• the debate on public liability and Tort law reforms and the subsequent introduction of 

legislation 19 . 

In Western Australia, these changes have been catalysts for the non-profit outdoor pursuits 

organisations across a number of disciplines (e.g. bushwalking, caving, climbing, climbing walls, 

ropes courses and sea kayaking) to address regulation and improved practices for issues such as: 

• the demand for education and training; 

• risk management policies/practices; 

• ‘best practice’ standards; 

• professional development; 

• program diversity; and 

• participant/membership servicing. 

The emergence of Outdoors WA as the recognised peak body for outdoor pursuits in Western 

Australia has provided a much needed forum for service providers to address self-regulation and 

advocacy requirements. Outdoors WA aims to represent and ultimately assist in the ongoing 

development of a variety of outdoor pursuits. Organisations with a vested interest in Outdoors 

WA’s activities include: 

• CALM Tourism Industry Reference Group; 

• Art Sport and Recreation Industry Training Council; 

• Abseiling Assessment Panel; 

• Cave Management Advisory Committee; 

• Australian Camping Association; 

17 ‘To Certify or Not to Certify: How judgement works in certification decisions,’ Cheryl Teeters, Ph.D. Trends, V32, No. 3, 1995. 


19 The ‘Volunteer Protection Bill 2002’, the ‘Insurance Commission of WA Amendment Bill 2002’ and the ‘Civil Liability Bill 2002’ 

have been introduced into the Western Australian Parliament in 2002. 


• Australian Outdoor Education Council; 

• Outdoor Recreation Council of Australia; and 

• Department of Education Curriculum Council. 

The Department of Sport and Recreation has provided ongoing consultancy and advisory 

support for the establishment, governance and management of Outdoors WA. 

Parks and Leisure Australia, WA Branch (PLA) 20 is another peak body with interests in outdoor 

pursuits. Parks and Leisure Australia seeks to be the nationally recognised parks and leisure 

association, providing industry professionals with leadership, advocacy and direction in 

industry standards, training support and product innovation. 

Who would regulation apply to? 

A range of regulatory solutions (self regulation, legislation, policy and procedures) apply to all 

stakeholders within the industry including, but not limited to: 

• businesses/private sector; 

• Government departments including Department of Sport and Recreation, Department of 

Conservation and Land Management (CALM), WorkSafe Western Australia, Department of 

Transport Marine Safety, Department of Education; 

• land owners/managers (local governments, private, CALM); 

• outdoor recreation peak bodies – Outdoors WA, Outdoor Recreation Council of Australia, 

Parks and Leisure Australia; 

• instructors and leaders; 

• school groups; and 

• participants. 

What regulation strategies already exist in WA? 

Strategies and initiatives already in place, or being implemented, in WA that provide regulation 

for outdoor pursuits fall into the following broad areas: 

• leader and organisational accreditation; 


• registration and membership; and 

• risk management policies and practices. 

Leader and Organisational Accreditation 

It is becoming increasingly difficult for land management agencies, employers, insurance 

agencies and potential clients to determine the skills that an individual leader possesses, 

or the standard of service provision by an outdoor pursuits operator due to the proliferation 

of providers offering training for adventure leaders and the absence of quality assurance 

mechanisms applied to all training, safety and service. 

20 In 2002 a merger occurred between Parks and Leisure Australia (WA) and the Leisure Institute of Western Australia to provide 

a more coordinated approach towards advocacy for stakeholders/members. 


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A number of systems have been introduced in an attempt to ensure that individual outdoor 

leaders and/or organisations have appropriate competencies and qualifications. These systems 

have been established within peak bodies, activity associations or community organisations 

at a state or national level. However, most of these schemes have been developed for a 

specific activity (e.g. camping) or to meet specific criteria (e.g. customer service, environmental 

practices) and therefore cannot be applied to the whole of the outdoor recreation sector. This 

has led to the demand for a broad outdoor pursuits accreditation scheme (refer to Strategy 2). 

Education and Training 

An Outdoor Recreation curriculum was introduced within the National Training Framework in 

1999, and since then competencies within the Outdoor Recreation curriculum have been offered 

in Western Australia through a number of Registered Training Organisations (RTO’s). 

In response to consumer demand, the Department of Sport and Recreation provided an 

accredited Abseiling course between 1994 through to 2001. However, the Department’s course 

has been superseded by the provision of abseiling competencies through the National Training 

Framework now being offered by RTO’s 21 . 

In order to ensure continued access to relevant outdoor pursuits education and training, the Arts 

Sport Recreation Industry Training Council, in consultation with numerous stakeholder groups, 

develops, promotes and advocates for the provision of relevant training packages through RTO’s. 

Activity specific training and skill development – i.e. kayaking, climbing - is provided by a 

number of community organisations both commercially (e.g. Paddlesport, Adventure Out) 

and in the not for profit sector (e.g. Climbing Association of WA, UWA Sports Club, the Scout 

movement). 

Registration and Membership 

A number of outdoor pursuits activities have clubs, and/or State and National associations 

whose responsibility it is to oversee the development and coordination the activity. A club 

or organisation provides the following services that contribute to the successful conduct and 

management of activities: 

• competition rules; 

• insurance; 

• information dissemination; 

• standards; 

• voluntary adherence to a Code of Practice/Ethics; 

• site access; and 

• technical accreditation (i.e. coaching, officiating). 

Risk Management Policies and Procedures 

Government, through the Department of Sport and Recreation, provides forums and information 

on risk management and ‘best practice’ for organisations, and has developed a number 

of policies relevant to the sport and recreation industry generally - Child Protection, Antiharassment, 

Privacy Act, Recreational Underwater Diving Codes of Practice. 

21 The first abseiling course within the National Training Framework was offered by TAFE in July 2002. 


Outdoor pursuits regulation is linked to a number of other government policies, some of which 

are further outlined in Appendix 2. 

Most outdoor pursuits organisations have risk policies and practices in place to meet 

legal or insurance requirements (e.g. Privacy Act, public liability). Increasing numbers of 

organisations are adopting further policies and practices to limit their liability and/or meet 

‘best practice’ standards. For example, Outdoors WA requires all members to adhere to a 

voluntary Code of Ethics. 

Interstate and international comparisons 

A review of the status /existence of regulation practices of outdoor pursuits both within 

Australia and internationally was completed (refer to Appendix 2 for full overview). The 

following was observed: 

• specific site access regulations are typically regulated by government agencies, primarily 

on a state/provincial level, although some Federal agencies have generic site access 

policies; 

• access and safety measures are often self-regulated, alongside careful monitoring and 

support by government; 

• education and training standards are often both self-regulated and monitored and 

supported by government; 

• with the exception of the UK’s Adventure Activities Licensing Authority, accreditation and 

registration is almost entirely self regulated; and 

• risk management policies and procedures are often both self-regulated, usually activity 

specific (i.e. abseiling, canoeing) and monitored and supported by government. 

Self-regulation 

The majority of outdoor pursuits stakeholders, during the consultation and interviews, 

indicated a willingness to progress self-regulation initiatives to achieve the following: 

• enhanced access to safe and worthwhile outdoor pursuits; 

• advocacy and promotion of the benefits of outdoor pursuits; 

• reduction of the negative health and social impacts of our technological society; 

• working together and through a peak body to better deliver and promote outdoor pursuits 

to the community; 

• working closely with government agencies to ensure that balanced community interests 

are met; 

• professional development and continuous improvement of personnel, systems and 

programs; 

• a high degree of safety for participants, without eliminating the essential benefits of the 

challenge itself; and 

• gaining equitable access to government and community funding and support, in the 

community interest. 


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4. Strategies and Recommendations 

The outdoor pursuits stakeholders support a move towards the preferred position of responsible 

self-regulation, alongside careful monitoring and ongoing support by government. 

Had there been large-scale evidence of abuse, renegade operators or sloppy standards, the 

conclusion may well have been different; however, there is no evidence of this in WA’s outdoor 

pursuits. Rather, the WA environment is one where responsible operators have to date worked 

well together and with land managers in their efforts to provide a sustainable base for growth 

and development of outdoor pursuits opportunities. 

Outdoor pursuits stakeholders support progression of a self-regulated approach involving the 

nurturing of partnerships, education and quality improvement, rather than through legislation. 

Self-regulation would include the following principles and elements: 

• genuine co-operation and collaboration between the various stakeholder groups; 

• a sector reference group, with representation from major stakeholder groups to monitor 

planning, progress and education forums; 

• strengthening of peak industry groups, to provide policy development and advocacy; 

• peak bodies to work with outdoors service providers; 

• adoption of national industry education/training and other accreditation developments; 

• adoption of quality improvement models; and 

• appropriate funding and resourcing to achieve the above. 

The following strategies have been developed in consultation with key stakeholders: 

Strategy 1 – Adoption of Risk Management Policies and Procedures 

“Successful risk management plans are likely to result in fewer injuries. They also lead to 

decreased claims against insurance policies, hence more affordable premiums” 22 This rapidly 

changing insurance environment is one of the major factors driving the need for outdoor pursuits 

organisations to adopt formal risk management policies and plans. 


That all outdoor pursuit providers adopt formal risk management policies and plans, in 

accordance with Standards Australia’s ‘National Risk Management Guidelines for Sport’ with 

reference to the Australian Standard on Risk Management AS/NZS 4360/1999, and Tort law 

reforms 23 currently being finalised by the Western Australian Government. 

Child protection and anti-harassment are very real issues for the sport and recreation industry 

in our current safety conscious environment. The Department of Sport and Recreation has led 

considerable awareness raising, education and policy development in recent years, and outdoor 

service providers need to up-skill themselves on principles and practices on both issues. 


That the Department of Sport and Recreation extend its child protection and harassment 

education programs to reach outdoor recreation practitioners. 

22 ‘Review of Australian Sports Insurance, ‘Rigby Cook Lawyers; Summary of a report prepared for the Sport and Recreation 

Minister’s Council, March 2002, Standing Committee on Sport and Recreation (SCORS). 

23 Tort Law Reforms refers to the ‘Volunteer Protection Bill 2002’, the ‘Civil Liability Bill 2002’ and the ‘Insurance 

Commission of WA Amendment Bill 2002’ that have been introduced into Parliament in 2002. 


Strategy 2 – Leader and Organisational Accreditation 

The Outdoor Recreation Council of Australia (ORCA) is developing two national accreditation 

schemes – the National Outdoor Leader Registration Scheme (NOLRS) and the outdoor 

Organisational Accreditation Scheme (OAS). These schemes will provide easily recognised 

national standards at a time when demand for accountability, responsibility, and quality of 

service continue to increase. The benefits of the accreditation schemes are outlined below, and 

a more detailed analysis is provided in the report on the Implementation of AAP/NOLRS/OAS in 

Outdoors WA Project Feasibility, May 2002. 24 

National Outdoor Leader Registration Scheme (NOLRS) 

The scheme will provide: 

• an Australian-wide process recognising competency, prior experience, whereby people 

leading outdoor recreation activities in a responsible and professional manner can be 

registered; 

• a process that recognises existing training and experience and aids in the identification of 

‘gaps’ in experience and training outcomes; 

• a public database that may be accessed to identify people who have met a minimum 

standard of skills, knowledge and experience; 

• the collation of data that can be used by planners and policy makers to gain a more 

accurate picture of outdoor activities and the manner in which they are conducted; and 

• the development of a more professional image throughout the nation and across a variety of 

outdoor activities. 

Organisational Accreditation Scheme (OAS) 

The Organisational Accreditation Scheme has been designed for outdoor education and 

recreation organisations to provide a process to examine organisational policies and 

procedures. While other organisational accreditation schemes exist, the overall aim of OAS is to 

introduce a scheme specifically relevant to the outdoor recreation industry. The advantages of 

the OAS, include: 

• promotion of quality standards within the profession; 

• ability to adapt to changing ‘best practice’ standards, community needs and attitudes 

through a review process; 

• it will provide governments and land owners/managers with a measure of safety and 

professionalism that can be expected from registered outdoor recreation organisations; 

• a database of high quality outdoor recreation organisations may be accessed to identify 

those that have met a minimum standard of skill and knowledge; 

• the collation of data that can be used by planners and policy makers to gain a more 

accurate picture of participation and conduct in outdoor activities; and 

• the development of a more professional image throughout the nation and across a variety of 

outdoor activities. 

Stakeholders have indicated a willingness to implement these schemes in WA by March 2003. 

In the report on the implementation of the national outdoor schemes 25 , The Department of 

24 ‘Outdoors WA Feasibility: The implementation of AAP/NOLRS/OAS in WA’, Department of Sport and Recreation, May 2002. 

25 ‘Outdoors WA Feasibility: The implementation of AAP/NOLRS/OAS in WA’, Department of Sport and Recreation, May 2002. 


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22 

Sport and Recreation recognises Outdoors WA as the most suitable organisation to assume 

responsibility of administering the accreditation schemes in WA. 

The adoption of national accreditation schemes NORLS and OAS in WA will progress self 

regulation towards ensuring safety and operational standards, especially as each body 

responsible for an activity (such as abseiling or canoeing) will be involved in determining their 

individual activity approaches at a local level. 


That the National Outdoor Leader Registration Scheme (NOLRS) and Organisational 

Accreditation Scheme (OAS) be implemented in Western Australia, managed by Outdoors 

WA 26 , as per the recommendations outlined in the Outdoors WA Feasibility on the 

Implementation of Abseiling Assessment Panel/NOLRS/OAS report 27 . 

Whilst NOLRS and OAS will provide an accreditation system developed for outdoors personnel, 

there is a demand in Western Australia for a complementary system of accreditation for camps 

and/or outdoor activity facilities/providers. 

The Australian Campsite and Outdoor Activity Provider Accreditation Program run by the 

Australian Camping Association is capable of being adapted and implemented in Western 

Australia. Take-up of this accreditation program would provide a timely confidence boost to 

key target markets, especially schools that are increasingly shying away from traditional school 

camp programs because of duty of care considerations. 


That key outdoor pursuits sector stakeholders (private, public and community sector) 

in Western Australia examine the Australian Campsite and Outdoor Activity Provider 

Accreditation (ACOAPA) program with a view to immediate implementation of the scheme. 

Strategy 3 – Education and Training Initiatives 

Consultation with stakeholders highlighted the need to ensure ongoing education and training 

opportunities remain accessible for service providers, including: 

• the industry peak body, Outdoors WA drive the identification of industry education and 

training requirements; and 

• increase access and support for education and training courses offered under the National 

Training Framework. 

For example, the Abseiling Instructors Certificate was previously delivered by the Department 

of Sport and Recreation is now delivered by a Registered Training Organisation in partnership 

with the service provider. 

26 There is significant onus on Outdoors WA taking a lead role in implementing a number of the recommendations within this report. 

It is clearly understood that Outdoors WA, as a voluntary body, within their current resourcing capacity will not be able to undertake 

implementation as directed without adequate resourcing. 

27 ‘Outdoors WA Feasibility: The Implementation of AAP/NOLRS/OAS in WA’, Department of Sport and Recreation, May 2002. 



That Government and land owners/managers recognise courses delivered by Registered 

Training Organisations (RTO) under the National Training Framework including the 

Abseiling Instructor course first offered by an RTO in July 2002. 

Strategy 4 – Implementation of a State Assessment Panel (or equivalent) 

The previous Abseiling Assessment Panel 28 convened by the Department of Sport and 

Recreation has served an important and useful role in developing safety and a self-regulated 

framework for the activity of abseiling in WA. The industry now recognises the need for a 

similar body across a broad number of outdoor pursuits activities. 

Outdoors WA has been working towards establishment of such a body, referred to as the State 

Assessment Panel (SAP). The objective of the SAP is to further the industry’s efforts at selfregulation 

and quality control, primarily in the following areas: 

• support and continuation of quality accreditation in Western Australia; 

• responsibility at state level to implement two key national registration schemes – NOLRS 

and OAS; 

• professional and skill development; and 

• advocacy to support other industry projects as required. 


That Outdoors WA is recognised and resourced as the peak governing body overseeing 

the establishment of a State Assessment Panel (or equivalent) responsible for: 

• accreditation of organisations/service providers; 

• recognition of current competency standards; and 

• registration and licensing of leaders and operators. 

Strategy 5 – Code of Ethics 

Implementation of a Code of Ethics will help guide and promote acceptable behaviours, 

service levels and standards for outdoor pursuits service providers. 


That Outdoors WA, in association with the Department of Sport and Recreation, implement 

a a Code of Ethics to promote acceptable behaviours, service levels and standards within 

the industry. 

28 More information on the roles and responsibilities of the Abseiling Assessment Panel are outlined in the DSR 

‘Outdoors WA Feasibility’ report. See footnote 25. 


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Strategy 6 – Public Liability Reforms 

Many jurisdictions across Australia are initiating tort law reforms to redress the balance of 

personal/participant responsibility with duty of care responsibilities of service providers and 

landholders for recreation activities. The coming months will see active debate and some 

legislative and regulatory changes. 

Broadening interpretations of duty of care and subsequent negligence determinations across 

Australia in recent years has adversely impacted the outdoors sector. The second stage Tort 

Law reforms that have been foreshadowed for Western Australia will likely address the definition 

of negligence, risk warnings and assumption of risk matters, all having direct relevance to the 

outdoors sector. 

Outdoor recreation service providers, regardless of whether they are private, public or 

community based, seek an appropriate balance in providing reasonable care and skill 

as responsible practitioners, with participants also assuming personal responsibilities. 

Stakeholders need to be aware of resulting developments, and be proactive in ensuring that the 

special circumstances of outdoor pursuits are recognised in policy formulation. 

Some interstate and offshore jurisdictions have landowner legislation that balances duty of care 

responsibilities on landowners and recreation participants. The tort law reforms proposed by 

the New South Wales Government regarding risk warnings would go some way to addressing 

that issue and may serve as a legislative model for Western Australia to consider. 


That Government consult / inform outdoor pursuits stakeholders regarding Stage 2 Tort 

Law reforms 29 to bring improved clarity and balance on key duty of care issues (eg. risk 

warnings, waivers, negligence definitions etc.). 

Strategy 7 – Cross Government Coordination 

There are several Government departments and statutory authorities that have responsibilities 

pertinent to outdoor pursuits operators. The core agencies being the Department of 

Conservation and Land Management, Department of Education and the Department of Sport 

and Recreation. Several other departments and statutory agencies also have linkages e.g. 

Tourism Commission, Water and Rivers Commission, Water Corporation, WA Police Service and 

Emergency Services etc. 

Outdoor pursuits professionals in dealing with multiple Government agencies have expressed 

considerable and ongoing frustration. Government agencies frequently seek input into their 

respective policy formulation processes and want independent verification of accreditation of 

operators as a prerequisite for allowing site access. There is, however, virtually no resource 

support contributed by Government agencies to peak bodies in the outdoors sector to assist 

them establish an ongoing capability to meet these expectations. 

29 Stage 2 Tort Law reforms refers to further legislative reforms regarding voluntary assumption of risk (i.e. 

strengthening waivers) pending deliberations of a nationally convened review of negligence (Ipp Report) and 

amendments to the Commonwealth’s Trade Practices Act 1974. 



That a standing Outdoor Pursuits Working Party with representatives from the Departments 

of Conservation and Land Management, Education, Tourism, Sport and Recreation and 

outdoor pursuits representatives be convened biannually to address the following standing 

agenda items: 

• site access and survey considerations; 

• improved policy formulation on issues impacting outdoor pursuits service providers; 

• improved advocacy for outdoor pursuits service providers, recognising the social and 

economic contribution they are collectively providing to the community; and 

• improved resources and support to enable Outdoors WA to assist government 

departments in policy and operational matters in discharging their respective briefs e.g. 

education, recreation, conservation. 

Achievement of the above will require: 

• stakeholders (service providers, government and peak bodies) committed to quality 

improvement in contributing to a regulatory framework, embracing codes of conduct and 

professional development; 

• commitment by Government to provide coordinated and professional response to the 

various government and community interests; 

• strong partnerships between the service providers, government and peak bodies; and 

• increased access to funding and consultancy support to peak bodies, based on the unique 

characteristics of outdoor pursuits. 

These four key principles together will ensure that outdoor pursuits in WA will continue to meet 

community expectations and outcomes of service providers, peak bodies and government. 


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26 

Appendix 1: 

Excerpt from the Coroner’s Report on the Hartfield Inquest 

I, Michael Joseph McGUIRE SM, Coroner, having investigated: 

1. The death of Kristy Rose HARTFIELD 

2. With an inquest held at PERTH Coroner’s Court, 172 St George’s Terrace, Perth on the 

Twenty-fifth, Twenty-six and Twenty-eight days of August, 1998. 

3. Find that ... 

I recommend that consideration be given to the desirability of legislating in this State to control 

abseiling and similar activities to include: 

(a) Licensing of instructors; 

(b) Setting curricula to be completed before licensing shall occur; 

(c) Issuing and disseminating guidelines; 

(d) Maintaining a register of licensed instructors; 

(e) The circumstances when bottom belay may be used; 

(f) The circumstances when top belay shall be used; 

(g) The circumstances when a points man shall be required; 

(h) Stipulating what drills and instructions shall be give to prospective abseilers before 

abseiling commences; 

(i) Approval of abseiling sites; 

(j) Specifying what part or parts of Western Australia may be used for abseiling activates; 

(k) Specifying the types of communication to be used by abseilers from the bottom to the top 

of the cliff and in an emergency; 

(l) Specifying the circumstances in which a rock fall shall be notified to the instructor; 

(m) Providing a system of quality assurance to ensure that protocols are complied with; 

(n) Requiring a log of participants and instructors to be kept; and 

(o) Requiring a written emergency evacuation plan to be drawn up and approved before 

abseiling occurs. 


Appendix 2: 

Overview of outdoor pursuits regulation in WA, interstate 

and internationally 

Site access and safety 

Country Current trend in Sample strategy in place or being implemented 

industry regulation 

Self Govt None 

UK – • Adventure Activities Licensing Authority - compulsory 

inspection and licensing for activity centres providing 

adventure activities to young people in remote areas 

• Provision/Use of Work Equipment Regulations 1992 includes 

policies relevant to outdoor equipment 

• Lake District National Park Authority publication, ‘Climbing 

Group use of Lakeland Crags 

USA – • US Dept of the Interior Bureau of Land Management 

– Permits for recreation on public lands 

Canada – • Ministry of Forest’s policies for recreation access 

New Zealand – • United New Zealand Recreation Policy 

Germany • Information unavailable 

France • Information unavailable 

Interstate – • National Parks Regulations 1990 – Reg 21 specifies site 

access requirements 

WA – • CALM and Waters & Rivers Commission policies relating to 

recreational access to Crown Land 

Education and training 




UK – – • Physical Education National Curriculum, Outdoor & 

Adventurous Activities (OAA) 

• Publications by peak recreational bodies – e.g. ‘Good 

Practice Advice for Groups of Climbers in the Peak District, 

British Mountaineering Council 

• Lake District National Park Authority publication, ‘Climbing 

Group use of Lakeland Crags 

USA – • North American Association for Environmental Education 

– Recommended competencies for outdoor educators 

Canada – – • Canadian Council for Human Resources in the Environment 

Industry, National Occupational Standards 

• Activity specific skills training courses – i.e. Instructor 

courses 

New Zealand – • Activity specific skills training courses – i.e. Instructor 

courses 


27

28 




Germany – • Activity specific skills training courses – i.e. Instructor 

courses 


• Various members of the European Network Of Sport Science, 

Education And Employment 

France – • Activity specific skills training courses – i.e. Instructor 

courses 

• Various members of the European Network Of Sport Science, 

Education And Employment 

Interstate – – • National Training Framework’s National Outdoor Recreation 

Training Package. 


courses 

WA – – • National Training Framework’s National Outdoor Recreation 

Training Package. 

Accreditation and registration 


courses 




UK – – • Adventure Activities Licensing Authority - compulsory 

inspection and licensing for activity centres providing 

adventure activities to young people in remote areas 

• Mountain Instructor Scheme administered by the UK 

Mountain Training Board 

USA – • Association for Experiential Education Voluntary 

Accreditation Program (now internationally recognised) 

• State based schemes, such as the New York State Outdoor 

education Association 

Canada – • International Federation of Mountain Guide Association 

– standards, accreditation, advocacy 

New Zealand – • International Federation of Mountain Guide Association 


Germany – • International Federation of Mountain Guide Association 


France – • International Federation of Mountain Guide Association 


Interstate – • ORCA’s NOLRS and OAS schemes 

• Recreational Diving legislation, Qld 

WA – • ORCA’s NOLRS and OAS schemes 

• Underwater Recreational Diving – Voluntary Code of Conduct

Risk management policies and procedures 




UK – – • Scouts have an online resource ‘Advice for Leaders and 

Instructors’ promoting risk management 

• SportEngland offers a number of risk management 

resources/seminars for peak industry organisations 

USA – • American Canoe Association’s National Livery Safety System 

– a risk management and public education program for 

recreational river paddling 

Canada – – • Parks Canada’s Visitor Risk Management Handbook 

• The Council of Outdoor Educators of Ontario provide risk 

management courses/publications, etc. 

New Zealand – • Outdoor New Zealand’s industry website ‘Safe as Outside’ 

promoting risk management information 

Germany • Information unavailable 

France • Information unavailable 

Interstate – – • Interstate Departments of Sport and Recreation (or 

equivalent) offer a number of risk management resources/ 

seminars for peak industry organisations 

• Activity specific risk management practices, publications, 

etc. 

WA – – • Department of Sport and Recreation offers a number of 

risk management resources/seminars for peak industry 

organisations 

• Activity specific risk management practices, publications, 

etc. 


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30 

Links to other government policies 

Conservation Commission - ‘Forest Management Plan’ 

• This draft forest management plan is released by the Conservation Commission of 

Western Australia (the Conservation Commission) for public comment, as part of the 

process of developing a new management plan for the forest ecosystems of south-west 

Western Australia 

http://www.conservation.wa.gov.au/forest_management140802.html 

Department of Conservation and Land Management: 

• Identification and Management of Wilderness [Draft policy] 

http://www.calm.wa.gov.au/national_parks/management/pdf_files/wilderness_ 

management_draft_policy.pdf 

• New Horizons - the way ahead in marine conservation and management 

National Training Reform Agenda: 

• Joint Policy Statement: Future Directions for VET in Schools is the result of collaboration 

between agencies and authorities. It provides the opportunity for students to achieve 

quality VET outcomes that are nationally recognised, including National Outdoor 

Recreation 

Occupational Safety and Health Act, 1984. 

Waters and Rivers Commission: 

• Policy and guidelines for recreational and general access on Crown Land within Public 

Drinking Water Source Areas and other water source catchments [Draft policy] 

http://www.wrc.wa.gov.au/protect/policy/Draft%20recreation.pdf 


Glossary of Terms 

Accreditation The recognition of a program or institution as meeting certain 

pre-determined qualifications, and/or training within that program/ 

institution. 

ASRITC Arts Sport and Recreation Industry Training Council 

Assessor An outdoor leader who has obtained competencies from an RTO in, 

and has maintained currency in, being able to plan, conduct and 

evaluate assessments 

Certification The recognition of an individual who has met certain pre-determined 

qualifications, specified by an agency or organisation. 

Competency The minimum industry agreed standard of skills and knowledge 

necessary for a specific activity being conducted at a specific level 

DSR Department of Sport and Recreation 

Guide Takes you on an outdoor experience but only imparts sufficient 

knowledge for the participant to be able to undertake the activity 

under direct supervision; can work in a “controlled” site specific 

environment or remote areas 

Instructor Imparts knowledge and skills to enable participants to independently 

participate in an outdoor activity; can work in a “controlled” site 

specific environment or remote areas 

Leader Generic term for someone conducting activities in the outdoors; can 

be a guide, instructor or assessor; can be paid or voluntary 

Licensure/licensing The granting of permission to persons meeting certain requirements to 

engage in a given occupation. 

NOLRS National Outdoor Leader Registration Scheme 

NORTP National Outdoor Recreation Training Package 

OAS Organisational Accreditation Scheme 

ORCA Outdoor Recreation Council of Australia 


31

32 

References 

A Guide to safe practices in the sports of abseiling and rock climbing. Ministry of Sport and Recreation, 

1997. 

Australian Bureau of Statistics, Sport and Recreation: A Statistical Overview, Australia, 1997, ABS 

Publication Cat No. 4156.0. 

Beedie, Paul, Teaching Outdoor and Adventurous Activities: Issues Surrounding Modes of Delivery. The 

British Journal of Teaching Physical Education, Winter 2000, pg 18-20. 

Bull, F., Milligan, R., Rosenberg, M., and MacGowan, H (2000) Physical Activity levels of Western Australian 

Adults 1999, Published by the Health Department of Western Australia and the Department of Sport and 

Recreation, Western Australian Government, Perth: Western Australia. 

Ewert, A.W (1989). Outdoor adventure pursuits: foundations, models and theories. Publishing Horizons, 

Inc, Scottsdale, Arizona. 

Ewert, Alan, Certification: Analysing the Possibilities. The American Camping Association, Camping 

Magazine, April 1985, pg 16-19. 

Gass, M. A., and Williamson, J., Accreditation for Adventure Programs, Journal of Physical Education, 

Recreation and Dance, Jan 1995. 

Gottenberg, A., Implementation of AAP/NOLRS/OAS-Outdoors WA Project Feasibility, Department of Sport 

and Recreation, May 2002. 

Hollenhorst Ph.D., Steve, ‘Certified Wildland Recreationists?’, Trends, V26, No. 3, 1989. 

Hammitt and Cole, 1987. Wildland Recreation: Ecology and Management. New Work: John Wiley & Sons. 

Industry Development/Industry Assistance Review in the Fitness, Outdoor Recreation and Community 

Recreation Sectors. Tom Warner Consulting and Kadmos Group, report prepared for the Ministry of Sport 

and Recreation, May 1998. 

Kingsford, Kathy. Accreditation of Outdoor Leaders in Australia. Standards and Training Division, Outdoor 

Recreation Council of Australia, Abstract from proceedings from the 3rd National Outdoor Education 

Conference, Auckland New Zealand, January 1998. 

Loynes, Chris, ‘Becoming a Leading Outdoor Organisation: A report on the 1 st Conference of The Outdoor 

Recreation Council of Australia’, Sydney, NSW, July 1998. 

Mandatory Procedures for Adventure Activities in Outdoor Education. Australian Capital Territory 

Department of Education, 1984. 

McGuire, SM, Coroner, ‘Record of Investigation into Death of Kristy Rose Hartfield,’ Perth Coroners Court, 

ref. No. 46/98, 8 September 1998. 

Mountain Instructor Scheme: Guidance Notes for Candidates, Trainers and Assessors. United Kingdom 

Mountain Training Board, 2nd ed. 

Outdoor Recreation – Leader Training and Accreditation. Australian Parks and Recreation Magazine, 

Summer 1997/1998, pg 11-14. 

Review of Australian Sports Insurance: Summary of a report prepared for the sport and recreation 

Minister’s Council (SRMC), Standing Committee on Recreation and Sport, Department of Sport and 

Recreation, March 2002. 

Risk Management in Recreational River Paddling. P&R Magazine, USA, July 1995, pg 34-39. 

Rigby Cook Lawyers, Review of Australian Sports Insurance. Summary of a Report prepared for the Sport 

and Recreation Minister’s Council, March 2002, Standing Committee on Sport and Recreation (SCORS). 


SPA Handbook: Single pitch award for climbers leading and supervising groups. United Kingdom 

Mountain Training Board, January 1998. 

Teeters Ph.D., Cheryl, ‘To certify or not to certify: How judgement works in certification decisions,’ Trends, 

V32, No. 3, 1995. 

Watters, Ron, Minimising the Liability Exposure of Outdoor Recreation Programs. Outdoor Program 

Handbook, Idaho State University Press, Pocatello, 1986, pg 83-96. 

Wharton, Nick. Health and Safety in Outdoor Activity Centres, The Journal of Adventure Education and 

Outdoor Leadership, v.12 (4), pg. 8-9. 

Websites: 

http://www.cchrei.ca/now/tech/b07.html, Canadian Council for Human Resources in the Environment 

Industry, 07/06/2002 

http://www.aee.org/accreditation/aboutacred.html, About the Association for Experiential Education 

Accreditation Program, 11/06/2002. 

http://ericae.net/db/digs/ed391624.htm, ERIC Digest, Recommended competencies for outdoor educators, 

23/12/1998. 

http://www4.ncsu.edu/~leung/nrrips.html, Natural Resources Research Information Pages, 05/11/1998. 

http://www.aala.org, Adventure Activities Licensing Authority, 11/06/2002. 

http://www.blm.gov/nhp/news/regulatory/index.htm, US Bureau of Land Management Regulatory Actions, 

2/08/2002 

http://www.funoutdoors/com/policy.html, Policy and Issue Summaries – American Recreation Coalition, 

2/27/01. 

http://www.nysoea.org, New York State Outdoor Education Association, 2/27/01. 

http://www.safeoutside.org, Outdoor New Zealand’s Safe as Outside, 2/08/2002. 

http://www.anta.gov.au/trainingPackage.asp?qsID=142, Australian National Training Authority’s Outdoor 

Recreation Training Package, 1/05/2002. 

http://www.outdoornetwork.com/sourcenet/risk.html, The Outdoor SourceNet: The outdoor professional’s 

networking resource, 25/02/1999. 

http://www.for.gov.bc.ca/tasb/legsregs/fpc/fpcaregs/forrec/frr.htm, Canadian Ministry of Forests 

Legislations and Regulations, 02/08/2002. 

http://www.publicaccessnewzealand.org/files/united_policy_1999.html#anchor152336, United New 

Zealand Recreation Policy, 02/08/2002. 

http://webhome.idirect.com/~hesterkb/coeo/COEOservices.html, The Council of Outdoor Educators of 

Ontario Canada, 03/08/2002. 

http://parkscanada.pch.gc.ca/Library/risk/english/tdmvrm_e.htm, Parks Canada Visitor Risk Management 

Handbook, 02/08/2002. 

http://www.scoutbase.org.uk/activity/outdoor/climb/advice.htm, Scouts BaseUK, Climbing Advice for 

Leaders and Instructors, 02/08/2002. 

http://www.sportengland.com, Sport England’s homepage, 02/08/2002. 


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Useful Additional Reading 

Education Victoria (1998), Camping and Bush Activities, Safety Guidelines, Office of Schools, 

Department of Education, Victoria. 

ACT Department of Education, Mandatory Procedures for Adventure Activities in Outdoor Education, 

ACT Government, originally published in 1989, and re-edited ( date not specified). 

Watters, R. (1986) Minimizing the Liability Exposure of Outdoor Recreation Programs, University of 

Oregon Outdoor Education Program, Eugene,Oregon 83209. 

Priest, S and Gass, M. Effective Leadership in Adventure Programming, Human Kinetics, South 

Australia 1997. 

Hollenhurst, S,(1989) Certified Wildland Recreationists?, Trends, Vol26, No.3, 1989. 

Priest, S (1987), Preparing Effective Outdoor Pursuit Leaders, Eugene, Oregon, Institute of Recreation 

research and Service, University of Oregon. 

American Recreation Coalition (2001), Policies and Issues Summary, American Recreation Coalition, 

1225 New York Avenue, NW Washington DC 20005 

Walsh-Heron (1996), Lord Henley announces New Outdoor Activity safety Measures, TQS Adventure 

Activities Licensing Authority Cardiff, (1996) 

Kingsford, K, (1998), Accreditation of Outdoor Leaders in Australia, Outdoor Recreation Council of 

Australia, presented at 3rd National Outdoor Education Conference Auckland New Zealand, Jan 1998. 


Perry Lakes Stadium, Meagher Drive, Floreat 

PO Box 66, Wembley, Western Australia 6913 

Phone: (08) 9387 9700 Fax: (08) 9387 9726 Email: info@dsr.wa.gov.au

Future Direction of Outdoor Pursuits in WA - Australian Sports ...

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