Case studies of coastal councils
City of Joondalup, WA: Integrated community involvement to achieve results
Statistics
- Area of coastline: 16.5 kms
- Percentage of coastline controlled by the council: 100%
- Foreshore reserves: 239 ha
- Population: 161,000 (2001 census)
- Rate revenue: $43.4m
- Total revenue $72m
- Environment spending 2003-04: $530,000
Background
The City of Joondalup is situated approximately 26 kilometres north of Perth and is the second largest local government authority in Western Australia. The council has only been established since 1999 and development in the area has mostly taken place over the last 20-30 years. Subsequently, infrastructure is generally modern with all of the community having access to mains water and deep sewerage. The majority of the coastline has been set aside as reserve but is controlled by council.
Most of the foreshore has regional conservation value, with significant areas of coastal limestone cliffs, coastal heathland and landscape values such as high dunes. The foreshore also acts as a regional green corridor. Increasing pressure on the coastal reserves could result in significant changes to the structure and function of the coastal ecosystem, as well as to the aesthetic value and recreation amenity of the area.
The state government's Metropolitan Region Scheme applies to Joondalup. The Scheme and Statement of Planning Policy map the metropolitan region highlighting areas for development, areas of significance and Bush Forever sites. Bush Forever sites are protected areas and can not be developed unless there is approval from the state government to do so.
What are the critical coastal zone management issues
- Joondalup is facing significant urban expansion due to its close proximity to Perth. A rail line connects the two cities allowing workers to commute with relative ease. Whilst the council had undertaken a number of town and environmental plans, many were out of date due to the rapid rate of urban expansion.
- In the past there has been uncontrolled access to the beach and dunal systems. As a result, 4WD vehicles and sand-boarders regularly used the beach and dunes causing significant degradation. In addition, the limestone cliffs of the region are not stable.
- Council only employs one environment officer, and supplements this with contractors, Work for the dole participants, justice department work gangs and volunteers are used to undertake works. as a result, it was difficult to integrate contractor, council and volunteer activities. In addition, the capacity of council to manage their natural resource base was not being built.
- There is a wide range of interest groups in the shire who all wish to be consulted by council before plans are developed and works undertaken. It was difficult to coordinate these groups and delays in implementing plans and activities were experienced while consultation was undertaken.
Why was the City of Joondalup used as a case study?
The Council is an outer metropolitan council, strongly influenced by its close proximity to Perth. Whilst the length of the coastline is not large, the ecosystems were severely degraded. Council owns the foreshore, making it possible to manage the entire 16km of coastline.
It is a relatively newly developed area and has systems in place that require developers to address environmental protection issues. To manage people traffic and the damage this traffic was inflicting on the sensitive dunal systems, the council has completely fenced off the foreshore area. Council initiated the formation of a single community advisory committee to assist with community engagement on coastal zone management issues. At the same time, council has built their own capacity to manage NRM issues. To prioritise council funding decisions, an extensive plan of the coastal areas has been developed and agreed to by both council and the community who will implement the measures. In addition, an extensive schools education program has been developed which has resulted in better environmental outcomes.
Council initiatives to address the issues
The Joondalup Coastcare Forum
In 1999, Council initiated the formation of an independent group of community representatives called the Joondalup Coastcare Forum. The Forum bought together various Friends groups who all had an interest in the management of the coastal zone, including the fishing industry, bushland and community groups, the marine park and coastcare groups. This Forum meets regularly, a council officer sits on the group to provide technical advice only. The Forum develops their policy or forms a consensus and takes that view to council. As a result, council deals with one group, not many conflicting community views.
The establishment of the Forum has allowed the different community groups to come together into a single body allowing for more efficient approval processes for council projects, the development of community led events and projects and improved NRM outcomes have been achieved. The Forum also develops grant proposals for Coastcare projects and organises special events and projects. They have undertaken weed and vegetation mapping, highlighted conservation zones and undertaken cost estimates for corrective works.
Lessons learnt
The formation of the group was a council initiative, but undertaken by the community. Various community groups were already operating, but the Forum bought together a broad cross section of the community to form a peak community advisory group.
The first few meetings of the group attracted a large number of residents, a number of these residents were there to push one issue, sometimes totally unrelated to coastal issues, but they saw it as a forum to quiz council staff on many fronts. This situation may have been perceived as negative by some bystanders, but it is part of the process. It was a very useful exercise and in the end those residents with a real interest in the management of the coastline stayed with the process and have remained in the Forum for close to five years.
Reaching a consensus within the Forum is not always easy, but is aways achieved and this is then taken to council. Council finds it easier to engage with the community and decision making and consultation times are greatly reduced.
Development of the Joondalup Coastal Foreshore Natural Areas Management Plan
In 2002 council produced the Joondalup Coastal Foreshore Natural Areas Management Plan. The Plan was an initiative of the Coastcare Forum. A number of other management plans were in existence but were outdated due to the rapid development that had occurred in the previous ten years. The Management Plan brought together all other plans and updated them. The plan mapped the vegetation of the shire and classified its significance, outlined the fauna and habitat present, studied the foreshore ecosystems and provided a strategy for managing these areas.
Areas were assessed for degradation and cost estimates for rehabilitation were provided on a per hectare basis. The overall objective of this study was to prepare a report and recommendations detailing the optimum practices for the future control and management of the coastal foreshore of the City of Joondalup.
The plan allowed council to prioritise their coastal zone management activities and provided a rationale for funding to implement the plan. The plan estimated that $150,000 per annum was required to implement the activities outlined and council appropriates this funding each year.
The Coastcare Forum inputted information to the plan and continue to assist with its implementation. The plan allowed the Forum and Council to apply for external funding, such as Coastwest grants to build on council funding. Community volunteers, Greencorp workers and local offenders serving court imposed community-based work-orders have been used to help implement the activities outlined in the plan.
The development and adoption by council and the community of this plan has given the council a firm strategic direction for the future. The advantages include:
- A firmer financial footing with clear budget goals
- The public know and are supportive of council's direction
- The plan is to some degree above council politics.
Council is not subject to pressure being applied by one or two residents wishing to have work completed next to their houses and conservation zones are managed as part of a firm plan without favour.
Lessons learnt
The plan has allowed council officers to apply for and receive an annual council appropriation to undertake priority projects. Council and the community have a long term plan, the ecosystems along the coastal foreshore have been greatly improved, dunal systems have been rehabilitated and a greater community awareness of coastal processes has been achieved.
Dual-use pathway
One initiative to come out of the planning process was the establishment of a dual-use pathway along the foreshore. The Coastcare Forum was consulted on the best route, council funding was provided to construct the pathway and fence off the beach and dune areas. Participation by the Forum ensured delays were minimised as the most appropriate route was quickly agreed.
Developers are obliged to contribute financially to the development of the pathway, dune rehabilitation and pest eradication as new residential developments are established and volunteer groups assist with the upkeep and regeneration activities. In new residential areas, developers work with the Coastcare Forum on activities and manage the rehabilitated areas for three years before handing them over to Council to manage.
There is approximately 40 kilometres of fencing which extends along the entire Joondalup foreshore. Fenced areas include dual use pathways, beach access paths, roads and hazardous areas such as limestone cliffs. Installation of fencing along the Joondalup coastline has generally followed the pattern of housing development from south to north. By keeping out 4WDs and sand-boarders, the dunes have been able to recover. Council believes it is very important to install high quality fencing prior to dunal rehabilitation taking place, as it sends a clear message to the public that the area is now being managed and is seen as being precious to the council.
Lessons learnt
There were disputes as to the best route for the pathway to take, however time delays were greatly reduced by taking a delegation from the Forum and walking along the foreshore and agreeing on the route. Both sides had to make concessions but in the end both parties were happy with the outcome. Council estimates around eight months were saved, rather than sitting with community groups over maps.
There was initial backlash from some sections of the community when the foreshore was fenced off. They were used to being able to walk their dogs, drive their 4WDs and ride bikes over the dunes, now they were being forced to stick to paths. Some fences were cut. Council persevered and costs of repair were minimised by utilising the services of correctional services teams. The situation settled down in a couple of months and the dunes have recovered significantly.
Developers were initially hesitant in undertaking their responsibilities, but being able to work with Forum members and build community support, their enthusiasm for undertaking works increased. Generally, by the time council takes control of the works, maintenance costs are minimal.
Increased council capacity to manage the coastal zone
To date Council has only had one conservation officer and a natural areas operations supervisor and has had a limited budget for other environmental works. These activities have been tendered out or undertaken by volunteers. To achieve better integration of works and to increase Council's capacity to manage their natural resources, Council staff now undertake management works. Working with the community, the Council Conservation Officer has requested council to employ four bush officers to do the work previously tendered out and to work with volunteer and school groups.
Lessons learnt
Council staff recognise the need to better integrate council's environment activities, which was difficult when managing teams of contractors. The long term benefits to council of increasing their own skill base, rather than contracting it out was identified and steps undertaken to employ council staff rather than contractors.
Through the works undertaken to improve the coastal zone, the capacity of both council and the community has increased greatly. As a result, most of the priority work has been completed and Council now plans to undertake similar initiatives in bushland sites.
Adopt - a - Coastline program
The council and Coastcare Forum developed the very popular Adopt - a - Coastline project for the city's schools. The students learn the theory of coastal processes, the importance of biodiversity and coastal zone management in the classroom. The council then gives the class a practical project, providing the resources to undertake the rebuilding of a sand dune, brush work to protect the dunes or regeneration works. The Coastcare Forum members assist by providing volunteers, such as retired scientists and teachers, to work with the students.
The costs are very low for the project, yet the benefits are great. It has resulted in fewer deliberate fires being lit along the foreshore, fewer people sand-boarding on the dunes and reduced graffiti and vandalism. The students get an understanding of the importance of the environment and a sense of ownership for the projects they have participated in.
To date, 16 schools and 3500 students have taken part. Demand for the program continues to increase. Council has found that students learn more and are more responsive if they are allowed to become involved in long tem projects [8 weeks duration] rather than one or two visits to the coast to plant native species. It is better to have one school work on a dune for eight weeks rather than have eight schools work on one rehabilitation project for one week.
Lessons learnt
council has been pleasantly surprised by the overwhelming support they have received from schools for the project. without the assistance of volunteers, council would not be able to provide the human resources to support the program. there has been a marked reduction in vandalism, particularly reduced fire lighting in the dunes and sand-boarding, as students do not want to see their work damaged. initial enthusiasm from students is often low, however once they get involved, their motivation levels increase greatly and they view the initiative very favourably.Summary
Having a relevant and up to date coastal zone management plan in place has allowed council to prioritise and fund coastal protection activities. The formation of a single community reference group allows for efficient and effective community consultation on projects with few delays. Their input into the planning process was invaluable. Council utilises their volunteers to be information conduits and to assist with the development of projects, the running of their education program and the preparation of funding applications. Due to the success of the coastal projects, Council is now ready to take on similar works in bushland areas.
- Contact:
- Keith Armstrong
City of Joondalup
08 9400 4000
keith.armstrong@joondalup.wa.gov.au
