Coastal Management Planning 2004

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Indicator description

What does the data tell us for 2000/2004

Background

Current Situation

2004 SMEC Coastline Risk Management Study Coastal Management Plan

Coastal Hazards: Development Controls Specific to Currarong Beach, Callala Bay and Callala Beach

Recommendations

Coastal Reserves Risk Management Procedure

Background

The Shoalhaven’s coastal urban areas have been and will continue to be exposed to impacts of coastal hazards. The last major storm events were in 1974/1975, which caused significant damage to coastal amenity and threatened built assets. This is considered to be a 1 in 100 year event or 1% ARI (Average Return Interval) for the open southern NSW coast.

While Council has, in consultation with State Government, achieved adequate planning efforts associated with flooding and Bushfire hazards, coastal hazards have not received concerted attention to date.  Coastal hazards include beach erosion, shoreline recession, coastal entrance instability, sand drift, coastal inundation, stormwater erosion, slope instability, and climate change.

The uncertain nature of the risk associated with coastal hazards requires management strategies to be “robust enough to accommodate changed or altered regimes of physical coastal processes“ ( DIPNR Coastal Management Unit advice 25 August 2004).  There is rapidly growing development pressures in the highly valued coastal foreshore areas including those resultant from population growth, development and re-development opportunities.

The Government's NSW Coastal Policy 1997 set the strategic policy framework for co-ordinated, integrated and ecologically sustainable development of the NSW coast. Also of relevance is the 1990 Coastline Management Manual, which documents the Government's Coastline Hazard Policy and outlines a structured management process leading to the adoption and implementation of a Coastline Management Plan.

The process set down includes:

• Formation of a Coastal management Committee (completed);

• Coastal Process and /or Hazard Definition Studies (commenced);

• Coastline Management Study;

• Coastline Management Plan development;

• Coastline Management Plan Review; and

• Coastline Management Plan implementation

Shoalhaven Council’s Coastline Management Objectives, set by the Coastal Management Manual are:

• To protect, rehabilitate and/or protect and improve the natural environment of the Shoalhaven Coastline;

• To reduce and contain the impact of coastal hazards and the potential for coastal damage on to existing and proposed coastal developments;

• To recognise and accommodate natural processes and climate change in the planning and management of the Shoalhaven coastline;

• To enhance and/or protect and enhance the aesthetic qualities of the Shoalhaven coastline;

• To ensure the ecologically sustainable development and use of the Shoalhaven coastline; and

• To provide the information necessary for integrated planning and management of the Shoalhaven coastline.

Climate Change impacts such as sea level rise must be considered in decision making. Other State legislative and policy changes that require incorporation into Council’s planning and operations include the new Floodplain Management Manual, Coasts and Estuaries Management Manual, Healthy Rivers Commission’s Shoalhaven River and Coastal Lakes recommendations, amendments to the Coastal Protection Act, SEPP 71, Comprehensive Coastal Assessment, Sustainability Assessments and Southern Catchment Blueprint.

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Current Situation

“The government requires authorities and instrumentalities to comply with the policy, its spirit and the implementation strategy suggested in the manual” ( Morton & Harris Coastal Hazard Areas- legal advice 25 August 2004) and “in general exculpation from liability (coastline) is reliant on Council acting in good faith in accordance with the procedure espoused in the NSW Governments Coastline Management Manual 1990 (DIPNR Coastal Management Branch advice 18 August 2004).

There has been significant delay and conflicting advice on how Council is to proceed under this process, however, a summary of the situation is as follows:

• Planning NSW under the Comprehensive Coastal Assessment have recently tendered a Coastal Risk Assessment for the NSW coastline that will provide all Local Government Authorities with a broad brush assessment of their coastline;

• The Shoalhaven Coastline Hazard Definition Study SMEC 2004 provides an assessment of risk exposure, identification of technical information gaps, assessment of development procedural adequacy and a strategic direction for future investigations. This report provides Council with priorities for future investigations based on risk to assets; and

• Council has received three Coastal Erosion Reports for Callala Beach, Callala Bay and Currarong Beach. The technical review has been completed and the studies identify that beach recession is active and will impact on built assets within a 50 year planning cycle. These reports provide Council with development controls based on risk to assets.

Council now needs to determine the planning period and type and levels of Development Controls that meet its Local Government Act, Duty of Care and Good Faith requirements and its obligations under the relevant legislation and policy, including but not confined to; Section 90 of the EPA Act, Local Government Act 1993, 1979 NSW Coastal Act, NSW Coastal Protection Act, NSW Coastline Hazard Policy, NSW SEPP 71 and the NSW Coastal Policy 

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The 2004 SMEC Coastline Risk Management Study Coastal Management Plan.

The value of that investigation work has been estimated at $275,000 with the compilation of the Management Plan likely to cost a further $150,000. A serious concern is that recent Council submissions to DIPNR’s Coastal Program have received no significant funding in the past two financial years and the process set down by the Coastline Management Manual is too complex and slow. The reality being that if alternative internal funding sources are not identified these studies will not proceed and Council will remain in this vulnerable position.

City Services has identified the Australian Government Department of Transport and Regional Services’ Natural Disaster Mitigation Program as an appropriate alternative source of funds for advancing on the highest priority sites for detailed investigation and has  submitted an application for those funds.

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Coastal Hazards: Development Controls Specific to Currarong Beach, Callala Bay and Callala Beach
In response to an outstanding need to plan for coastal hazard management and community and agency concerns pertaining to specific locations Council is now in receipt of the following reports

• CES Currarong Beach Erosion Study 2003;

• CES Callala Bay Erosion Study 2003; and

• SMEC Callala Beach Erosion Study 2004.

The 2004 detailed study for Callala Beach Erosion by SMEC  undertook a detailed investigation into the Quay Road frontage providing Council with photogrammetric analysis, wave climate / erosion characteristics, sediment transport/ dynamics model, recession rate/storm bite determination at 20, 50 and 100 ARI, and highlights the need for Council to upgrade development controls.

Recommendations

It is recommended that Council undertake a Coastal Management Study and Plan for the Callala Beach compartment in accordance with the Coastal Manual and SEPP 71 guidelines with the following objectives: 

• Council adopt the seaward limit of the 50 year Stable Foundation Zone as the appropriate set back criterion for the assessment of new residential building developments. Given that the line delineating this zone coincides closely with the 23 m Building Line for Callala Beach, it is recommended that Council maintain the 23 m Building Line for future new residential development proposals;

• Council not approve applications for development forward of the 50 year Stable Foundation Zone, that is, the 23 m Building Line for Callala Beach;

• Council require that new development, located beyond the 50 year Stable Foundation Zone and within the 100 year Zone of Reduced Foundation Capacity, be on pier foundations designed to transfer the building loads into the Stable Foundation Zone for a 100 year planning period, and that Council develop an appropriate standard pier specification as a Consent Condition for new development;

• Council develop a standard Dune Management Code as a Consent Condition for new development;

• Council include the 50 year and 100 year limits of the Stable Foundation Zone on the Section 149 Certificates to inform residents of the potential coastal hazard risk at each site; and

• The quantification of the erosion hazard be re-assessed every 10 years, based on the continuing collection of empirical data and on the more advanced analysis techniques that will become available in the future.

The 2003 detailed study for Currarong Beach Erosion highlights the need for Council to instate the recommended 50yr hazard setback lines for Warrain Crescent, where there is currently no setback lines for development.   

Recommendation

• Place notices on Section 149 Certificates Coastal Hazard Beach Recession in the 50 year planning period for Warrain Crescent; and

• Council undertake a review of the Coastal Hazard report as recommended in the SMEC Coastline Risk Management Study 2004 and adopt the revised Building setback lines for Warrain Crescent.

The 2003 detailed study for Callala Bay Beach Erosion  highlights the need for Council to plan for the protection of the public foreshore reserve in the 50 year planning period and private assets in the 100 year planning period. Beach reshaping and revegetation has been funded from unmatched Coastal Program budgets as an interim measure prior to considering larger engineering solutions at this site that would require significant state government assistance.

Recommended:

• Place notices on Section 149 Certificates Coastal Hazard Beach Recession in the 100 year planning period for properties on the seaward side of Boorawine Terrace; and

• Monitor success of beach erosion remediation works undertaken in 2004.

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Coastal Reserves Risk Management Procedure

Risk Management Procedures are being prepared for all physical services and the procedure has been drafted for Coastal Reserves. Risk Management Procedures are necessary to ensure the systematic identification of coastal infrastructure risks and defects and the prioritising of repairs. The 2003-2004 audit undertook the GPS mapping of the cities coastal assets which include:

Table 58 - Coastal Infrastructure Assets

In accordance to Council's Risk Management Procedure any access way identified as a high risk is closed pending repair or further assessment. Routine repair instructions, which will address the majority of low to medium risk walkways have been issued to contractors and a number of significant upgrades have been scheduled in North Bendelong, Manyana and Kioloa.  However, the need for significant upgrade of infrastructure has been identified which is well beyond the capacity of existing budgets. Therefore, closures of existing walkways are required in order to address Council’s risk exposure.

Coastal Restoration & Maintenance

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