NATIONAL IRRIGATORS’ COUNCIL

POLICY PORTFOLIO - MURRAY DARLING BASIN PLAN

Advocating for the Australian irrigated agriculture industry

The Murray Darling Basin Plan

The Murray Darling Basin Plan "the Plan") became Commonwealth legislation in 2012.  It was enabled under the Water Act 2007.  The plan outlines the management of water resources in the Murray-Darling Basin, including water allocation, environmental water management, and water quality standards.

The Plan has been amended twice since becoming law:

  • 2017/18: Amendments to reduce the Water Recovery targets for the Northern Basin, enable Sustainable Diversion Limit Adjustment Mechanism and the additional 450GL of environmental water to be achieved with neutral socio-economic outcomes. 
  • 2023: Restoring Our Rivers Bill amended key timelines for implementation, broadened the environmental objectives for the additional 450GL environmental water and enables other mechanisms of recovery without the need for neutral socio-economic outcomes, and removed limits on water purchases.

The Plan is scheduled for review by the Murray Darling Basin Authority in 2026.

Find Out More Find Out More



'Moving Forwards: Our Review into the Murray Darling Basin Plan' is a series of comprehensive papers by National Irrigators' Council based on the key themes identified by the MDBA in their Early Insights Paper and aims to start a conversation on how to enable improvements in the Basin Plan and enhance environmental outcomes with the water already held for environmental purposes. 


See Report
 See Report

Snapshot of environmental outcomes

  • Over the 9-year period, 15,443 GL of Commonwealth environmental water was delivered to 56 ecosystem types representing 249,079 ha of lakes and wetlands, 187,486 ha of floodplain, 27,715 km of waterways and 23,768 ha of estuarine ecosystems - Flow-MER_22-23 Synthesis Report (CEWH).
  • The largest bird-breeding events in the decades in 2022-2023 were supported by natural flows and various forms of environmental water- DCCEEW.
  • Increased abundance in native fish and improved resilience of native fish - CEWH
  • Improved connectivity between the Lakes, Coorong and Murray Mouth with 10 years of continuous flow and increased barrage flows, the maintenance of lake levels and salinities within optimal ranges in SA Lower Lakes - Monitoring Report -CLLMM.
  • The export of at least 4.2 million tonnes of salt through the barrages at South Australia - Benefits of water for the environment (DCCEEW).


Water Recovery Progress

Water recovery towards the Murray Darling Basin Plan Sustainable Diversion Limits and compliance with those limits, is monitored by the Murray Darling Basin Authority.


As reported in the August Sustainable Diversion Limit Water Take Report the Basin Plan Sustainable Diversion Limits are being achieved with all water resource plan units compliant. 


The progress to-date means  that 1 in 3 litres of water for agriculture is now held by environmental water holders.  This is a total reduction in water availability meaning 72% of average river flows are for the environment and 28% to water users.


KEY MESSAGES

The National Irrigators' Council wants to see healthy rivers and wetlands because we are locals too and that is why we are committed to enforcing compliance with current Sustainable Diversion Limits  - as the core component of the Murray Darling Basin Plan.

Future Basin Plan implementation must focus on moving beyond ’just add water’. Governments must optimise outcomes through being smarter and more strategic with environmental water; investing in complementary measures (such as invasive species control, fish passageways, habitat restoration, fish screening, riparian land management); and a paradigm shift of working together.


Policy Position Statements relating to the Murray Darling Basin Plan

Finalising the Murray Darling Basin Plan

Position Statement

SDLAM Reconciliation

Position Statement

Constraints Management

Position Statement

Reliability of Water Access Entitlements

Position Statement Agreed July 2025


Key Related NIC Resources on the Murray Darling Basin Plan

A new report by National Irrigators’ Council launched for National Water Week, has found that just 23% of the total water available in the Murray-Darling Basin is diverted for human use, while 77% remains non-diverted and in rivers.

“Water is life – supporting healthy rivers, productive farms and strong communities. This National Water Week, it's important we recognise how much the Basin has changed and what that means for its future,” said National Irrigators' Council CEO Zara Lowien. [...]

NIC has asked the question - how much water is actually used in the Murray-Darling Basin? After 30 years of reforms to rebalance. This key piece of information is needed to understand and review water management in the MDB, to understands where that balance is now - between water diverted for human uses, and water not-diverted to remain in rivers. This goes to the original purpose of the Basin Plan.

The Report’s key finding is clear: just 23% of available water is diverted for human uses, leaving 77% in rivers, wetlands, and floodplains to support the environment.

Basin communities have responded to the Water Amendment (Ending Further Murray-Darling Basin Water buybacks) Bill 2026 introduced in parliament today, saying “it’s time to move beyond ‘just adding water’”. 

“The science is clear, restoring the remaining environmental challenges in the Basin cannot be solved by “just adding water””, said CEO of National Irrigators' Council, Zara Lowien.

Southern Basin communities risk losing a further 265 GL of water according to a new Murray-Darling Basin Authority (MDBA) report, unless the Federal Government changes course and puts today’s evidence ahead of past politics. 
“These communities have endured 30 years of reform, already losing 1 in 3 litres of water from farming, who are now hearing they risk a further 265 GL, on top of the 450 GL the Federal Government is already out purchasing,” NIC CEO Zara Lowien said. “It’s time to move beyond ‘just adding water’ to the environment, today’s environmental challenges need the right tools, and farmers and communities need stability.” [...]

The MDBA have released consultation materials ahead of the upcoming Roundtable in Sydney - NIC will be attending.  

This purpose of this pack outlines the emerging policy directions for the Basin Plan Review. It is intended to support further engagement and does not represent settled positions or decisions. There will be six Rountable discussions  on:

  • Optimising outcomes from environmental water (including constraints)
  • Water resource planning and regulation
  • At-risk SDL assessments and potential responses
  • Northern Basin water management
  • Water quality and native fish
  • Climate risk and adaptive responses

Australia's food security strategy cannot ignore water as a critical input, according to irrigation industry leaders in Canberra attending the National Farmers Federation Summit today.

National Irrigators' Council, NSW Irrigators' Council, Ricegrowers' Association, Citrus Australia and Cotton Australia were united in their call that water policy belongs in Australia's food security conversation. [...]

A new report has found levels of water use across the Murray-Darling Basin are fully compliant with the Basin Plan’s Sustainable Diversion Limits (SDLs), which irrigators say shows ‘the job is done’.

“Water use across the Basin is fully compliant with the Sustainable Diversion Limits set by the Basin Plan,” said Zara Lowien, CEO of the National Irrigators’ Council (NIC).

“It’s very clear that over-extraction is no longer the issue for the Murray-Darling Basin.”

Basin officials have confirmed 14 environmental projects will be withdrawn from formal recognition under the Murray-Darling Basin Plan placing Southern Basin communities at risk of losing up to a further 355 GL of water through no fault of their own.

“The environmental outcomes from these projects cannot be achieved by ‘just adding more water’,” said CEO of the National Irrigators’ Council (NIC), Zara Lowien, “in fact, these projects are essential to actually use all the water the Government has already recovered from farmers.Withdrawing these projects is a lose-lose situation for communities and the environment." [...]

The NIC continues to monitor the Federal Government’s implementation of the additional Held Environmental Water (HEW) program under the Murray-Darling Basin Plan and has released a second report, following our December 2025 analysis. 

The 450 GL program has fundamentally changed since it was first conceived. The original budget has been exhausted, expected costs have escalated significantly, the scope of the program has expanded, and new environmental evidence has emerged. Despite these material changes, there has been no transparent reassessment of whether continued expenditure represents the most effective, efficient and economical investment to achieve environmental outcomes and deliver benefits to the Australian economy [...]

The MDBA together with the Australian Rural Leadership Foundation are hosting a free webinar to hear more about their new leadership initiative - A leadership program for people ready to work across sectors, communities and perspectives to support the long term health of the Basin and the communities it sustains. For anyone interested in learning more about this opportunity, a webinar is being held on Wednesday 20th May 2026 | 4pm - 5pm.

This submission is provided to the Productivity Commission’s (PC) fourth inquiry on governments’ progress under the National Water Initiative (NWI), as required by the Water Act 2007 (Cth). NIC notes that this inquiry comes at a time of significant review, and potential change, of water policy settings across Australia, particularly in the Murray-Darling Basin (MDB). The consultation burden affects stakeholders and Government.

This submission is provided to the review of the operation and management of the Menindee Lakes system. Many of our Members are critically linked into the frameworks and operations of Menindee Lakes via existing sharing arrangements through the Murray Darling Agreement or local sharing plans - above and below the Lakes. This submission therefore represents the views of irrigation entitlement holders and water users, and non-government water delivery networks, up and downstream of the Lakes.

Legalwise is again holding their annual Water Law Symposium in Sydney.
As water law continues to evolve in response to environmental challenges, policy reform and heightened regulatory scrutiny, secure expert guidance on key legal and strategic issues shaping Australia’s water governance framework. You will gain insights into the lessons of the past decade in water reform, the intersection of Indigenous rights and governance, and the design of the Basin Plan Review. 

A first look at the Murray Darling Basin Authority’s Basin Plan Review discussion paper, reveals again that more is needed than “just adding water” to improve the environments of the Basin. “The discussion paper should serve as an important wake up call to the Federal Government who continue to use old tools, for today’s challenges”, said NIC CEO, Zara Lowien.[...]

The MDBA have opened registrations for a series of webinars to support their consultation approach on the Basin Plan Review. The initial topics being how to make a submission, Menindee and SDL assessments. The webinars will be recorded and start from Monday next week. 

A link on these webinars is not yet available on their website but is available by clicking here. 

 NIC report reviewed the Federal Government’s purchases and found most have low environmental utility and cannot directly contribute to today’s environmental priorities in the Basin – despite costing taxpayers billions.“These additional water buybacks go beyond what was required to ‘bridge the gap’ to get Sustainable Diversion Limits in place for the Basin Plan,” said NIC CEO Zara Lowien “most of this additional water will not be able to be used as intended and unlikely to contribute to desired environmental outcomes”. [...]

There have been several concerns raised regarding the Federal Government’s decision to purchase additional water from farmers that go beyond the water recovery required to ‘bridge the gap’ to reduce water usage to Sustainable Diversion Limits (SDLs), in the Murray-Darling Basin Plan. The concerns relate to the effectiveness or need for additional water acquisition, with questions on how the Government’s actions are contributing to policy outcomes, meeting value for taxpayers’ money, and consider the growing evidence that signals alternatives approach to ‘just adding water’ are needed to enhance environmental outcomes around the Basin.

This Report by NIC, provides a preliminary assessment of the Federal Government purchases of additional water under “the 450 GL” program of the Plan. [...]

This update relates to persons or classes of people required to report water market information under the Australian Government water market regulation - this can be IIOs and water intermediaries.

DCCEEW are seeking feedback on the Exposure Drafts for the proposed Water Amendment (Water Markets Information) Regulations 2026 (Regulations) and the Water Market Data Standards.  These form the final pieces of the water market reform roadmap and are due for implementation in 2026.

Exposure drafts and a survey for feedback are provided on the webpage.

NIC has completed our own internal review into the Murray Darling Basin Plan, which is a series of papers addressing the key themes of the 2024 Early Insights paper using the recently published “Triple Crown of Water Reform Framework” to highlight possible next steps for the Basin Plan.  We hope to help forge a future pathway that embraces the paradigm shift needed for the Basin that is more about a 'plan of management' than the current ‘water recovery plan’ focus.  The review addresses; regulatory design, sustainable water limits, climate change, environment, agriculture and community and contemporary issues.   
We encourage stakeholders to reach out to discuss these papers, the evidence, our findings and recommendations. 

Irrigation Australia Limited's Spring Journal features our CEO, Zara Lowien's comments on the 2025 Basin Plan Evaluation (on page 32-35) indicating there were plenty of first the MDBA's 'game changing' 2025 evaluation but what does it mean for the irrigation industry.  Zara highlighted the opportunity before Minister Watt has to work collaboratively with communities and industry on a much-needed reset, that looks to refocus the Basin Plan on outcomes rather than numbers. 

Australian Farm Institute, Executive Director Katie McRobert says "Much of Australia’s agricultural policy is caught in a loop. When a crisis erupts – be it drought, market disruption, or community outrage – political and media attention surges. Decisions are demanded, headlines written, levers pulled. But as the immediate threat subsides, so too does the will to implement lasting solutions...This edition of the Farm Policy Journal explores that cycle – and asks what we can do to break it. ....The opening article by Christine Freak and Zara Lowien examines the long and often reactive trajectory of water policy reform in the Murray–Darling Basin (MDB)...[They] offer offer an original contribution to this challenge in the form of the Triple Crown of Water Reform Framework, which conceptualises reform as a three-pronged effort: water-sharing (Flows), watermanagement (Functions), and integrated resource initiatives (Further)."

We have just put in our submission for the third Water for Environment Special Account (WESA) review - take a look.

Our key recommendation: "The Independent Panel take a broad view to examine the policy settings and decision-making on the use of WESA funds to achieve enhanced environmental outcomes with consideration of socio-economic impact - to ensure WESA can be used transparently to target priority environmental investments. We encourage you to explore the option to amend the WESA to ensure it can be used transparently to target priority environmental investments such as community-supported constraints measures and investment in non-flow complementary measures as evidence within the 2025 Basin Plan Evaluation and Sustainable Rivers Audit."

Thank you to our members who have contributed to this piece of work, and taking the time to provide feedback. 

If there's one video those working in water must watch this year, it's this - Professor Forest Reinhardt from Harvard Business School talking to Andrew McConville at this years River Reflections Conference on water property rights (watch from 45 minutes into Day 1). 

Let us know your favourite quotes!

One of our favourites (1hr 18mins in) - in response to a question on what a future Basin Plan should look like: "If the subsequent versions of the Basin Plan, can make water more and more like a normal commodity... just as if you own a piece of land... I think that the more you can make water rights look like normal property rights, the more effective the system will be. I come from a country where we can't even get to the starting line of that kind of thing."


Today’s publication of the Murray Darling Basin Authority’s (MDBA) 2025 Basin Plan Evaluation and Sustainable Rivers Audit has found the health of the Basin has improved, advising that “water for the environment is essential, but on its own is likely not sufficient” [MDBA Overview]...  The National Irrigators’ Council has described many parts of the Evaluation as refreshing and a wakeup call needed to shape thinking in the Basin going forward and is calling for more quick thinking on how to determine and prioritise a package of strategic environmental investments in these complementary (non-flow) measures to inform next steps on the Basin Plan, given the Evaluation found this as a missing piece of the current Plan puzzle.  [...]

Basin communities fear socio-economic impact assessments soon to be released by the Murray-Darling Basin Authority (MDBA) will water down the true impact, overlooking community and industry-level data, in their Basin-scale assessment. “Basin Plan legislation requires 5-yeraly Evaluations, but at a Basin-scale”, said Zara Lowien, National Irrigators’ Council (NIC) CEO, “we know the most severe impacts are felt at a local community level, and within specific industries, but these impacts get smoothed out when the assessment zooms to the Basin-scale.”  [...]


NIC Members agreed to a specific Position Statement on the reliability of water access entitlements to provide a clear message to Governments on how decisions impact water property rights, as represented and agreed in the National Water Initiative.

This position statement was prepared in conjunction with our guiding principles.

Approved 17 July 2025.

14th May 2025, Canberra, ACT: The National Irrigators’ Council (NIC) congratulates Murray Watt on his appointment as the Minister for the Environment and Water, saying this is an opportunity for new leadership to put policy above politics and partnerships over partisanship. “Until recently, water management in Australia has had a long history of bipartisanship across politics.  We hope under new leadership... we can see a return to respectful and constructive water policy solutions, that can once again rise above politics,” said NIC CEO, Zara Lowien. [...]

DCCEEW today released the Exposure Draft of the Water Markets Intermediaries Code (the Code) and an Overview of the draft are now available for consultation.  On this page you will be able to submit your feedback on the Exposure Draft. The consultation will be open until 11.59pm on Sunday 6 April 2025.  The Exposure Draft incorporates feedback from the Policy Position Paper consultation in November-December 2024.

Show More

Join Our Community

Find out more about our community, and join our mission advocating for the Australian irrigated agriculture industry.

Our Community
 Our Community


Website Disclaimer |  Privacy Policy |  Terms & Conditions