National Vineyard Register consultation paper

Purpose of the consultation paper

The purpose of this consultation paper is to seek feedback on the development of the National Vineyard Register (NVR) – in particular: 

• the benefits and features it should offer, 
• the data it should or could collect, and how that data should be collected, 
• how it might interact with other sector-wide programs and applications, and 
• who should manage, own and fund the ongoing maintenance and operation of the register. 

Feedback on the key questions around the NVR framework is invited from stakeholders in the grape and wine sector. This includes growers, wine producers, industry associations, agribusinesses and partnering organisations.

Download a full version of the consultation paper (PDF)

The consultation paper in brief

Background and context

The National Vineyard Register (NVR) Framework Project is funded by the Department of Agriculture, Fisheries and Forestry (DAFF), as part of its Grape and Wine Sector Long-term Viability Support Package to support the Australian grape and wine sector to reach long-term sustainability through new initiatives that assist growers and producers.

Read more about the terms of reference for the National Vineyard Register Framework Project

Feedback from the sector during 2023–24, as part of the One Grape & Wine Sector Plan consultation process, identified the imbalance of supply and demand as the single most urgent challenge requiring immediate support and action. A need was identified for a vineyard register that would be able to provide insights into the national supply base, capturing key data on plantings to support better decision-making.

Read more about the rationale for a National Vineyard Register

Historically, the Australian Bureau of Statistics (ABS) collected and published annual vineyard area data by Geographical Indication (GI) and variety. However, this collection was discontinued in 2015.

Since then, attempts by Wine Australia on behalf of the sector to collect detailed, up-to-date information on vineyard plantings at a national level have had limited success, mainly due to lack of participation from growers.

Read more about previous national vineyard data collections in Australia

Although there is currently no national vineyard register or database of plantings, there are some state and regional collections, as well as datasets, mapping platforms and registers in other agricultural and horticultural sectors, and international vineyard registers – eg in New Zealand and South Africa. These other examples provide insights into what a national vineyard register could look like and how it could potentially be built.

Read more about other registers and platforms that we can learn from

What data should the National Vineyard Register collect?

The primary purpose of the National Vineyard Register is to provide better data on our vineyard supply base that enables growers and winemakers to make more informed decisions on planting requirements to meet market demand. The core data requirements to achieve this are:

• area of vineyards by variety, location and age,
• changes in plantings in a timely manner and
• ownership details.

Additional features and functionality could be included that would benefit the sector – for example in terms of reduced costs of compliance, more efficient and better targeted vineyard management, improved biosecurity, facilitated technology adoption, sustainability, traceability and provenance. For example:

• geospatial location (ie accurate vineyard position, size and shape – not just what GI the vineyard block is in),
• additional planting attributes such as rootstock, clone, yield,
• records relating to compliance requirements such as the Label Integrity Program, levies collection, spray diaries, biosecurity-related records and
• functionality that would allow integration and interoperability with other data platforms.

Read more about data requirements and options for the National Vineyard Register

How should the data be collected?

The data for the National Vineyard Register could be collected directly from growers, or indirectly via other sources – or possibly as a mix of these. The method chosen will fundamentally affect how the register or platform is built, what data it can collect and what other benefits can be derived from it.

Read more about the pros and cons of each data collection method

How should the National Vineyard Register be maintained and resourced?

The success of the NVR will depend on its financial sustainability in the long term.

Whichever solution is chosen for building the NVR, significant ongoing resourcing will be needed after implementation for the management of the Register, maintenance of the technology, ongoing software and licensing costs, and ongoing support for the users of the system – in addition to the data analysis and checking, reporting and dissemination of the information and insights produced.

While the development of the NVR has been funded by the Commonwealth Government, the full roll-out and ongoing management is not funded, and thus annual funding will need to be sourced. This could come from the Commonwealth Government, industry levies or potentially a user-pays approach (or a combination of sources).

Another related consideration is who should manage the NVR. Consideration needs to be given to which organisation has the capacity, security, capability and mandate for such an important function. Funding and ownership could potentially be separate from management.

Read more about how the Register should be maintained and resourced

What is the National Vineyard Register Framework Project?

The National Vineyard Register (NVR) Framework Project is funded by the Department of Agriculture, Fisheries and Forestry (DAFF), as part of its $3.5 million Grape and Wine Sector Long-term Viability Support Package to support the Australian grape and wine sector’s response to the oversupply of red wine.

DAFF will contribute $1m funding for the development of a framework for the NVR and delivery of the Register by Wine Australia.

Terms of reference for the project 

The DAFF project requires Wine Australia to scope the framework for a national vineyard geospatial register with the following elements as a minimum:

• geolocation of vineyards by variety and annual yield data;
• ability to track plantings and removals on at least an annual basis;
• grower contact details to enable management of biosecurity incursions at the national level; and
• options to enable mandatory collection of data.

Wine Australia is required to finalise a project plan by December 2024 and complete the implementation plan by June 2025.

The establishment of the National Vineyard Register is set for completion by June 2026. This will be subject to the feasibility of the implementation plan, including necessary investment required and likely completion times for any required legislative or regulatory amendments.

The project will involve extensive consultation with stakeholder groups including grapegrowers and winemakers from all wine-producing regions, industry bodies and state and regional wine associations.

Feedback from the sector during 2023–24, as part of the One Grape & Wine Sector Plan consultation process, identified the imbalance of supply and demand as the single most urgent challenge requiring immediate support and action.  A need was identified for a vineyard register that would be able to provide insight into the national supply base, capturing key data on plantings to support better decision-making. 

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Why a National Vineyard Register – and why now?

The Australian grape and wine sector consists of more than 2,000 wineries and 6,000 grape growers operating across 65 winegrowing regions.

With more than 100 grape varieties cultivated across 146,244 hectares, the sector has a long-term average production of approximately 1.73 million tonnes of wine grapes, yielding around 1.25 billion litres of wine. However, Australia’s vineyards, with their variation of grape varieties, climatic conditions and wine styles, form a diverse wine sector with thousands of products exported to more than 100 global markets and catering to a wide range of consumer preferences.  

Current challenges

The Australian wine industry is currently grappling with a significant oversupply of red wine grapes, particularly varieties like Cabernet Sauvignon, Merlot, and Shiraz from inland irrigated regions. 

While the loss of China, the largest export market by value for Australian wine, was a significant contributor to the oversupply over the last three years, long-term structural supply and demand imbalances have been evident in the sector for decades. The global downturn in wine consumption, trends towards other alcoholic beverages, supply chain issues and increasing costs have also contributed to the current acute issue.  

According to Wine Australia’s 2023 Production, Sales, and Inventory Report, there is an estimated 2.2 billion litres of wine in inventory, 288 million litres above the 10-year average.  The situation is worsening, with more growers in 2024 (particularly in inland regions) unable to find buyers for their grapes than in previous years. Forecasts from ABARES suggest red winegrape prices will continue to drop in 2024–25.   

Response to the challenges

One Grape & Wine Sector Plan (OGWSP)

Wine Australia and Australian Grape & Wine led a sector-wide consultation process throughout 2023–24 to develop and refine a set of priorities and actions for the wine sector.  

Consultation feedback identified the imbalance of supply and demand as the single most urgent challenge requiring immediate support and action.  A need was identified for a vineyard register that would be able to provide insight into the national supply base, capturing key data on plantings to support better decision-making.  

Agriculture Ministers’ Working Group

In March 2024, State Agriculture Ministers also recognised the urgent issues facing Australian grape growers, particularly in the inland regions.

The Ministers established the National Viticulture and Wine Sector Working Group (also known as the ‘Ag Ministers’ Taskforce’), which was tasked with developing a national strategy to address the red wine oversupply and guide the sector to a balanced and profitable state. 

The Working Group commissioned a report by Emeritus Professor Kym Anderson AC of the Wine Economics Research Centre at the University of Adelaide.   

The Anderson report highlighted critical gaps in supply and demand data and proposes solutions to restore balance. 

One of its central recommendations is the creation of a national vineyard register, to provide the sector with better information to guide decision-making. Anderson argued: 

"Since prospective responses by vignerons to climate change include altering the mix of winegrape varieties in their vineyards or seeking cooler-climate sites to avoid changing varieties, better information to guide such decision-making is needed.  However, official vine area data on annual winegrape plantings and removals by variety and region have not been collected since 2015 in states other than South Australia. Broadening that area data-gathering exercise to non-SA states is essential for improving investor and industry planning – and was recommended nearly a decade ago by a Senate enquiry (Rural and Regional Affairs and Transport References Committee 2016).” (pg 63) 

Government response: the $3.5 million support package

In June 2024, the Department for Agriculture, Fisheries and Forestry (DAFF) responded to the oversupply issue when it announced a $3.5 million Grape and Wine Sector Long-term Viability Support Package to support the long-term sustainability of the sector. 

This funding included $1 million for the creation of a national vineyard register.

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What is the history of national vineyard data collections in Australia?

For the past 10 years, the Australian wine industry has lacked detailed, up-to-date information on vineyard plantings at a national level.  

The Australian Bureau of Statistics (ABS) Vineyard Survey provided the wine sector with accurate, complete data on vineyard plantings and yield by variety and region from 1973 to 2015, when the collection stopped. To alleviate the resulting gap in essential foundation data, Wine Australia has undertaken several initiatives over the last decade on behalf of the sector; however, none have replaced the ABS data or solved the problem of lack of accurate data by variety and region. 

ABS National Vineyard Survey (1329.0)

Up until 2015, the Australian Bureau of Statistics (ABS) collected a range of statistics on the Australian wine sector at no direct charge to the wine sector levy-payers.  Among these statistics were annual vineyard area (including bearing and non-bearing area) and tonnes crushed by Geographical Indication (GI) and variety. This enabled a time series of vineyard data going back to the late 1960s, allowing analysis of changes in the supply base across Australia by variety and region. The ABS had statutory powers to enforce the collection of data from growers and thus its Vineyard Survey was a census of grape growers, ensuring a very accurate collection. However, due to funding cuts, the ABS started charging the sector (via Wine Australia) to collect this data for a short time from 2009 – 2015 (circa $900,000 per year) before they ceased the collection completely in 2015 due to lack of resources. 

Foundation data project (VinSites)

The first industry-funded vineyard data project run by Wine Australia, known as VinSites (2016–2017), proposed the development of an online platform for grape growers to register their vineyard details, including variety and region plantings, removals and tonnage data. This project failed to deliver an accurate picture of planting data for several reasons. Firstly, as there was no national register of vineyard owners, contacting growers and requesting their information proved problematic. Vinehealth Australia sent letters to their database of growers in South Australia, seeking permission to share their data with Wine Australia and/or encouraging them to register with the VinSites platform, but this was also unsuccessful in recruiting significant numbers of growers, as was a campaign of personal visits to two targeted regions to recruit participants. The conclusions from the VinSites project were that a vineyard register with sufficient coverage to provide accurate statistics could not succeed without it being a census, and this would require provision of the data by growers to be mandated by legislation. The project also concluded that a successful platform must ensure privacy and confidentiality, and must provide a benefit to those contributing data. 

The National Vineyard Scan

The National Vineyard Scan was a three-year project (2017-2019) in collaboration with Consilium Technology6, using satellite imagery and machine learning to map vineyard blocks by GI region.  

While successful in identifying vineyard areas and locations, it had significant limitations. High imagery costs made annual updates unaffordable, and inconsistent imagery availability made year-to-year tracking difficult. The scan couldn’t identify key details like grape variety, ownership or type of grape (wine, table or dried grapes). 

Consilium Technology developed a platform for growers to ‘claim’ their vineyards and input data, but – as for VinSites – grower participation was minimal, with fewer than 100 growers/users by the project’s end, despite the fact it offered additional value-added features such as hyperspectral imagery, soil and climate data to help with vineyard management activities. 

Due to these limitations and costs, Wine Australia chose not to invest in further scans, and the vineyard area estimate has not been updated since 2019.  

Using data science to calculate area based on crush 

In 2021, Wine Australia commissioned a data scientist to attempt to calculate vineyard area, working backwards from the crush data collected in the annual National Vintage Survey7, and using historical yield data derived from existing data sources such as the National Vineyard Scan and the ABS Vineyard Survey. Unfortunately, this also proved unsuccessful due to the significant variations in yield across seasons, regions and varieties, major inaccuracies around smaller varieties and regions where the non-response rate to the National Vintage Survey is up to 50 per cent, as well as the inability of such a model to deal with bearing vs non-bearing area, or grapes that are not crushed. It also (self-evidently) could not provide ownership details for growers, greatly limiting its potential usefulness beyond very broad estimates of overall area by variety for the larger varieties and regions.

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What other registers and platforms already exist that we can learn from?

To identify the requirements, opportunities and outcomes required of the proposed National Vineyard Register (NVR), it will be important to understand what other databases, registers and platforms already exist in viticulture and agriculture. Broadly speaking, these can be grouped into three categories: 

1. existing vineyard registers / databases in Australian viticulture, 
2. existing vineyard registers / databases globally and 
3. existing land use / datasets for other agricultural sectors in Australia (or possibly overseas) 

Existing vineyard registers / databases in Australian viticulture

In Australia, vineyard registers exist at a state and regional level, to varying degrees of completeness, accuracy and functionality. Whilst some of these vineyard registers are mandatory, most datasets are incomplete and are not used for understanding supply and demand requirements at the regional level. Datasets are primarily used by regional associations to contact their members with information relating to regional activities.  

Winery databases

Wineries have comprehensive information about growers with whom they have contracts – including block size and location, variety, age, rootstock/clone, yield history and ownership details. It is likely that the largest 30 wineries would hold information on over 75 per cent of the vineyard plantings in Australia – particularly in the warm inland regions. However, the other 25 per cent of vineyard area across the rest of the Australian winegrowing regions, owned by approximately 4000 independent grapegrowers and winery vineyards, is not likely to be covered to the same extent. 

Vinehealth Australia vineyard register 

Probably the most complete example of a vineyard register in Australia is the one maintained by Vinehealth Australia in South Australia. Vinehealth Australia (VHA) is an independent statutory authority in South Australia, established under the Phylloxera and Grape Industry Act 1995. 

Vineyard owners with 0.5 hectares or more under vine are required under the Phylloxera and Grape Industry Act 1995 to register their planting and property location details with VHA’s vineyard register. The primary purpose of the register is to facilitate VHA’s role of protecting South Australian vineyards from pests and diseases, and responding effectively if incursions occur. 

The particulars of the VHA vineyard register include detail of the landowner’s name and address, the location of the vineyard, varieties, age of the vines, source of the vines and area planted, all of which are necessary for managing biosecurity threats. This dataset in its current form is limited to a statewide scope and has not been set up specifically to facilitate aggregated data reporting and analysis. 

MapVit

MapVit is an example of a fully geospatial platform where growers log in and enter their vineyard details including identifying every row by variety, and can extract reports and maps to support other applications and technologies. It was built for McLaren Vale Grape, Wine and Tourism Association to support the regional adoption of ‘agtech’. To date, approximately 10 per cent of growers in the region have signed up to the MapVit platform as part of a trial (which included a small cost to the users).  

Existing vineyard registers / databases globally

Globally, countries like France, Spain, South Africa, Italy, and even the state of California in the US, have well-established vineyard registers, although some face limitations regarding data sharing across regions. For example, the European Union mandates vineyard registers as part of its Common Agricultural Policy (CAP), but the level of detail and the accessibility of the data can vary between member states.

In New Zealand, the wine industry has a well-structured, centralised vineyard register managed by New Zealand Winegrowers (NZW).  

All vineyards owned by NZW members are required to have an annual biosecurity vineyard registration. This includes all producing vineyards, newly planted vineyards that will produce a crop within the next three years and any non-productive vineyards that are likely to be used for future commercial wine production.  

The main purpose of the register is to ensure that, in the event of a new vineyard pest or disease arriving in New Zealand, the NZW biosecurity team can contact all growers in the at-risk area as soon as possible and keep them informed regarding the outbreak and any response. 

Existing land use / datasets for other agricultural sectors in Australia

A number of platforms and databases exist in Australian agricultural and horticultural sectors. These serve a variety of purposes with diverse methods for collecting and disseminating data.   

Similar to the VHA Vineyard Register in South Australia, these dashboards help manage biosecurity threats by locating and informing landowners about threats and incursions. Additionally, they offer critical data-driven insights for growers, industry stakeholders and policymakers, enabling better decision-making in areas such as water allocation, biosecurity, pest management, and climate adaptation.  

The mapping dashboards help monitor land use changes, assess crop health, and forecast production levels, all of which are essential for managing supply chains and responding to market demand. For example, knowing the distribution of orchards allows for more effective disease and pest monitoring, reducing the risk of outbreaks that could devastate the industry. Additionally, these platforms support sustainability efforts by helping stakeholders understand how tree crops interact with local ecosystems, including water usage and environmental impact.

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What does the sector need from a National Vineyard Register?

The idea of a National Vineyard Register (NVR) means different things to different people. As illustrated above, there are many models already in existence that record various pieces of information about vineyards or other agricultural plantings in various ways, and offer a range of other features and benefits. The challenge is to agree on a preferred model for the NVR that will meet the expectations and requirements of the sector, so that it receives the support required to ensure its success. 

Minimum requirements for the National Vineyard Register

The primary purpose of the NVR is to assist the sector in addressing the current over-supply, and more generally to provide better data on our vineyard supply base that enables growers and winemakers to make more informed decisions on planting requirements to meet market demand.  

To do this, the sector needs to know:  

• what area of vineyards is planted by variety; 
• where vineyards are planted; and 
• the potential or actual yield (production) from the vineyards.

This information needs to be up-to-date and therefore also needs to track changes in plantings including new plantings, replacements and removals in a timely manner. 

Knowing the age of vines (particularly in relation to whether the vines are bearing or non-bearing) is helpful in forecasting yield and can be used as an alternative to recording actual or average production. 

To maintain an accurate and up-to-date register that stores all these attributes, ownership details are also required, so that accurate information can be provided to the NVR, records can be stored against the owner’s name, changes can be tracked, and owners can be communicated with regarding updating their records8. 

Additional potential features for the National Vineyard Register

The National Vineyard Register Framework Project provides an opportunity to think about what other features and functionality could be included that would benefit the sector – for example in terms of more efficient and better targeted vineyard management, biosecurity, technology adoption, sustainability, traceability and provenance. 

Geospatial location

Geographical location of vineyards is a core requirement of the NVR. Demand for winegrapes is largely determined by the location of the vineyards, due to wine style requirements that relate to climate, labelling requirements, marketing preferences or logistical considerations (for example a winemaker in Margaret River would incur practical difficulties and additional costs in attempting to purchase grapes from the Granite Belt).  

However, knowing the exact spatial location of the vineyard block is not normally required for this purpose – it could just be identified in terms of its GI region.   

A geospatial register would provide the exact location, shape and size of a vineyard and its blocks (or even rows), which in turn could allow: 

• growers to be contacted where their vineyard blocks fall within a biosecurity incursion or exclusion zone, a fire danger area or flood risk zone, or to advise of burn-offs, land-use changes specifically affecting vineyards etc.;  
• growers to prepare maps of their vineyards incorporating aerial imagery, including hyperspectral imagery, that allows greater understanding of crop health, variability, irrigation leaks, etc. Standard imagery also enables mapping of vineyards and sites for asset management, risk management and infrastructure maintenance; and/or 
• high level industry analysis of the supply base by elevation, micro-climate, rainfall, soil type or any other geospatial attributes.

The costs relative to the benefits of including geospatial data would need to be weighed carefully. The additional benefits would come with significant additional costs – in particular the much more detailed information that would have to be provided (and regularly updated) by the grower and the complexity of the register/database or platform that would be needed to support the data and functionality. 

The ultimate geospatial database would also record the varieties by spatial location – e.g. by tagging blocks (or rows) with the variety name. This would massively increase the amount of data required to be provided, stored and updated.   

Additional attributes of plantings 

Collecting data on the rootstocks and clones of each variety block would be helpful for a number of applications – including gathering data on the performance of different rootstocks and clones in different regions (climate conditions) and mapping how that changes over time, and in relation to climate and weather variations. It would also have biosecurity applications – e.g. the presence of phylloxera-resistant rootstocks in areas that are, or could be, affected by phylloxera. However, it would greatly increase the amount of data required, as well as adding to the complexity of tracking changes to plantings and recording block attributes where grafting of a new variety occurs on top of an already grafted vine. 

Yield data could also be recorded, potentially providing growers with useful historical information on their block and the ability to generate regional or varietal benchmarks against other vineyards. 

Compliance functionality

Growers and wineries are required to carry out various compliance and record-keeping related obligations in accordance with existing legislation. For example:  

• in accordance with the Wine Australia Act 2013 (Cth)’s Label Integrity Program, for each grape delivery of grapes, a written record must be made containing:  
• the grower’s name and address, 
• the receiver’s (or winery) name and address, 
• the date the grapes are supplied, 
• the quantity of the grapes supplied and  
• the vintage, variety and prescribed Geographical Indication of the grapes, 
• in accordance with levies collection legislation (presently the Primary Industries Levies and Charges Collection Act 1991 (Cth)), wine processors who submit a return for the Grape Research Levy (paid by growers and remitted by wineries on their behalf; calculated on the volume of tonnes harvested) pass on grower details and information about tonnes harvested to the Department of Agriculture, Fisheries and Forestry, which collects two levies (the Grape Research Levy and the Wine Grape Levy) on behalf of Wine Australia, 
• spray diaries must be kept by grape growers to verify compliance with the Australia New Zealand Food Standards Code (and/or the laws of relevant export markets), and  
• biosecurity-related records (e.g. for Plant Health Certificates) must be maintained in accordance with State/Territory based legislation.  

A platform such as the NVR may be able to support these obligations by, for example, digitising the data, automating reports and improving the accuracy of storage, streamlining compliance and removing duplication of reporting. While it is not anticipated that the NVR would be built with any specific additional functionality at this stage, it could be built in such a way as to support such additional functionality in future, should there be it desirable to do so. 

Potential integration with other platforms and applications

There are significant opportunities for future development of the register to provide other functionality and/or integrate and interoperate with other data platforms. Examples include: 

• spray diaries and spray management platforms 
• asset management 
• hazardous chemical inventory management,  
• irrigation planning etc.

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How should the data be collected?

The data for the National Vineyard Register could be collected directly from growers, or indirectly via other sources – or possibly as a mix of these. The method chosen will fundamentally affect how the register or platform is built, what data it can collect and what other benefits can be derived from it.  

The main options, and potential pros and cons of each, are outlined below.  

Direct collection from growers via a survey

Growers could be sent a survey and asked to provide the information regarding their current planting details and any changes since the previous survey. This is how the ABS Vineyard Survey was conducted over many years. An enhancement to the basic approach would be to send out copies of the grower’s previously reported data and ask for any updates and changes to be advised – saving them from having to repeat the same information each time.  

For such a method to work, it would require an accurate and up-to-date database of vineyard owners including the best contact person (sometimes not the owner but a manager). Maintenance of such a system would require an ongoing administration cost, and identifying all growers in the first place, particularly if participation were not mandatory, would be challenging.

Grower login to an online platform

Growers would have a login to an online platform where they would record their data and maintain their records. This option would enable full integration of spatial data and the recording of other information such as spray programs, operating costs and activities, as well as supporting other applications and uses.

Indirect data collection or mixed method

Sources of data related to vineyards already exist – e.g. the Vinehealth Australia database, MapVit, grower databases in Riverina and Murray Valley, CCW’s grower database, the GrapeWeb and GrapeLink winery management systems and other winery databases of their own vineyards and those of their contracted growers. It might be possible to pull information from a number of these (and other) sources to obtain a picture of the supply base in Australia.

While it is not likely that an indirect method alone could achieve the level of accuracy required for a full picture of the supply base, an indirect / mixed method of data collection as the initial source, with validation and updates from vineyard owners, may be effective as a hybrid model that is less onerous for growers.   

There may also be the potential for a national vineyard scan to be completed remotely, as was done previously (the National Vineyard Scan), which would provide information on the overall area of vineyards by location. Such a scan, repeated regularly, could be used as the foundation for a platform. However, without contact details or variety details, it would not (on its own) achieve the minimum requirements of the NVR.

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How should the Register be maintained and resourced?

The success of the NVR will depend on its financial sustainability in the long term. 

Whichever solution is chosen, significant ongoing resourcing will be needed after implementation for the management of the register, maintenance of the technology and ongoing software and licensing costs, and ongoing support for the users of the system – in addition to the analysis, reporting and dissemination of information and insights. 

While the development of the NVR has been funded by the Commonwealth Government, the implementation and ongoing management of the NVR is not funded, and thus annual funding will need to be sourced. This could come from either the Commonwealth Government, industry levies or potentially a user-pays approach.  

Another related consideration is who should maintain the NVR. Consideration needs to be given to which organisation has the capacity, security, capability and mandate for such an important function. Funding and ownership could potentially be separate from management.

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