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22 August 2005

Chapter 2: Situational analysis

This chapter outlines some of the work currently underway into coastal zone management and the groups involved in undertaking the work. At a national level, the Framework discussed in 2.0 reflects the priorities being worked on in co-operation between the three spheres of government. A summary of the activities being undertaken by groups other than local government may be helpful when thinking about the various partnership arrangements that local governments may enter into. An understanding of the roles and responsibilities of councils is important in understanding why they are involved in coastal zone management. Finally, a start has been made on highlighting possible funding sources.

Contents of this page

• 2.0 A Framework for a National Approach to Coastal Zone Management
• 2.1 A summary of activities
  • 2.1.1 The Intergovernmental Coastal Advisory Group
  • 2.1.2 The National Sea Change Taskforce
  • 2.1.3 State activities
  • 2.1.4 The regional NRM arrangements
  • 2.1.5 Local councils
• 2.2 Why is council involvement in coastal zone management important?
• 2.3 Major issues in coastal zone management
  • 2.3.1 Planning
  • 2.3.2 Water supply
  • 2.3.3 Biodiversity
  • 2.3.4 Climate change
  • 2.3.5 Infrastructure
  • 2.3.6 Funding
• 2.4 Funding for coastal zone management
  • 2.4.1 Funding sources
• 2.5 Summary

2.0 A Framework for a National Approach to Coastal Zone Management

In October 2003, the Natural Resource Management (NRM) Ministerial Council agreed to the adoption of the Framework for a National Cooperative Approach to Integrated Coastal Zone Management. In April 2004 a discussion paper on the implementation of the framework was released. In June 2005, work started on developing an action plan outlining responsibilities for each of the actions under the Framework and a timeline.

The Framework addresses six priority areas and includes a total of 44 actions to implement the objectives for the priority areas. These areas were chosen as they had national significance and needed to be dealt with at the national level. The areas were:

• Integration across the catchments - coasts - ocean continuum
• Land and marine based sources of pollution
• Climate change
• Pest plants and animals
• Planning for population change
• Capacity building

There is no funding attached to the Framework, however opportunities to tap into existing funding sources to undertake activities are explored. The Framework builds on existing coastal management initiatives at the Australia, state and local government levels. At the time of writing, two states were still to sign onto the Framework, Queensland and Western Australia.

The framework document can be downloaded from the Department of Environment and Heritage.

2.1 A summary of activities

All spheres of government have recognised that high growth coastal areas are facing significant environmental pressures. A summary of the work being undertaken is provided.

2.1.1 The Intergovernmental Coastal Advisory Group

Implementation of the Framework is managed through the Intergovernmental Coastal Advisory Group (ICAG). This group is made up of representatives of the Australian Government, each state government and the Northern Territory, and the Australian Local Government Association (ALGA). The representatives are from the key coastal policy areas of government agencies. ICAG meets about three times a year to share information on what is happening in coastal zone management in each state and to implement the Framework.

2.1.2 The National Sea Change Taskforce

The National Sea Change Taskforce has been established to assist member councils to deal with the impact of changes such as rapid population and tourism growth. The Taskforce aims to work collaboratively with State and Federal Governments to develop national and state policies that will establish sustainable limits to growth, help to protect the coastal environment and address funding issues. They regularly hold forums for members and are undertaking research projects into demographics and planning practices.

2.1.3 State activities

The activities being undertaken by state agencies differs around Australia. In summary:

• Tasmania is reviewing their state coastal policy.
• Victoria is reviewing their planning activities through the Coastal Spaces project.
• New South Wales is undertaking a number of regional planning activities in coastal areas and will shortly be undertaking a targeted review of their coastal policy.
• South Australia is updating their coastal development plans and has undertaken a coastal landscape assessment.
• Northern Territory is undertaking a review of environment legislation.
• Queensland have recently released the South East Queensland Regional Plan 2005-2026.
• Western Australia continues its coastal planning program across the State and is currently preparing a Perth Coastal Planning Strategy. Engagement with the community is about to commence for this strategy.

2.1.4 The regional NRM arrangements

In 2001, the Australian Government made significant changes to the way the National Heritage Trust (NHT) program would operate. The NHT and the National Action Plan on Water Quality (NAP) would be run through new regional Natural Resource Management (NRM) arrangements. Under these arrangements, 56 NRM groups were established around Australia, based on river catchments.

In each catchment, a Board has been established to administer NRM in the region. Each region has developed a regional strategy, outlining the environmental issues in the region and has highlighted environmental targets (resource condition targets) they hope to achieve. Environmental issues have been prioritised in the Investment Strategy of each region. The projects with the highest priority are eligible to receive NHT or NAP funding through the regional Board.

2.1.5 Local councils

Many local councils have developed a number of planning documents and strategies to address the pressures they are facing. Councils are using their land use planning and statutory responsibilities to achieve more sustainable outcomes and some councils are trying to forge improved partnerships with other spheres of government and the regional NRM organisations. Most are seeking help in managing their natural resource base. The assistance of local council staff in taking part in ALGA's coastal project has provided information that has been very useful in putting this document together and their efforts are very much appreciated.

2.2 Why is council involvement in coastal zone management important?

Councils play a significant role in coastal zone management. Councils are a major land manager of reserves, parkland and picnic areas. Some councils also participate in land 'buyback' arrangements, where they purchase ecologically significant areas to place them under protection. Councils also have responsibility for planning controls and associated regulatory responsibility.

Councils are responsible for vegetation management and biodiversity conservation on public areas. They may be responsible for implementing state legislation or they may have their own council bi-laws to manage vegetation and biodiversity, such as tree preservation orders.

Councils are a large provider of infrastructure which can have a significant impact on the quality of the natural resource base, social issues in the area, and traffic congestion. In many areas, councils are responsible for the management of the water cycle infrastructure and provision. The provision of potable water, sewerage and stormwater services may be managed by the council. Councils are often responsible for the management of estuaries, which can be vast systems in some shires, placing a significant burden on council resources.

Obviously, councils have a significant impact on the management of the natural resource base in coastal areas. For these reasons, councils run their own programs to manage the coast line and local government must be included in any initiatives on coastal zone management. Whilst some issues are at a local area and need to be managed accordingly, assistance at the national, state and regional levels can assist councils to effectively undertake their responsibilities.

2.3 Major issues in coastal zone management

There are a large number of environmental issues affecting Australia's coastline. The issues outlined in this paper have been identified as a priority by councils participating in ALGA's coastal zone management project. Obviously, issues around infrastructure provision, social concerns including provision of health facilities, and economic development in high growth areas also need to be addressed - however, it is beyond the scope of this paper. Rather, the development of a broader coastal zone strategic framework is required to address all issues confronting high growth coastal areas.

This paper seeks to address the five highest priority environmental issues nominated by councils:

• Planning,
• Water supply,
• Biodiversity conservation,
• Climate change, and
• Infrastructure provision.

Finding useful solutions to these problems is very difficult. It is hoped that this discussion paper adds to the development of a strategic response by all governments and stakeholders.

Broad policy options are provided below and specific actions are scoped out in the following chapters. Responses will help ALGA to develop a strategy to assist councils to fulfil their coastal zone management responsibilities.

2.3.1 Planning

Councils have extensive planning experience and expertise. Larger councils often have multi-disciplinary teams working on various statutory and non-statutory planning activities. Council planning teams have the advantage of knowing and understanding issues affecting the local community. However, the rapid pace of growth affecting coastal areas in recent years has placed significant pressure on council resources. Given this, the capacity of councils to undertake strategic planning is currently constrained.

There is a shortage of planning staff, the need for strategic planning is enormous and there is limited funding to implement strategic plans. In addition, there is a lack of co-ordination between strategic planning being undertaken at the local, regional and state levels. The information being collected as part of the National Sea Change Taskforce's study into best practice planning will be very useful in progressing solutions to the planning problems.

Possible activities:

1. All spheres of government to work with industry and the Planning Institute of Australia to reduce the shortage of planners through both increasing student intake numbers and keeping professionals in the industry.
2. ALGA work with the state local government associations, the National Sea Change Taskforce, ICAG, the regional NRM organisations and other spheres of government to explore better options for achieving whole of government responses to planning needs, including coordinated regional planning.
3. During the upcoming reviews of the NHT/NAP arrangements, review the regional plans to determine if coastal issues are adequately dealt with and if local government is an active participant.

2.3.2 Water Supply

The consistent supply of good quality water was identified as the biggest environmental concern in ALGA's recent survey of coastal councils. However, finding a solution is made more difficult through a lack of coordination in providing infrastructure for water provision and treatment. This in turn influences the quality of water and the ability for towns expand and generate economic growth.

Some councils have limited water catchments or few opportunities to expand their water storage facilities. Many have outgrown the current capacity of dams, some coastal villages do not have reticulated water or sewerage and much of the water supply, storage and treatment facilities have been neglected and require significant maintenance and upgrades. A greater use of recycling technologies and the use of stormwater harvesting and water sensitive urban design principles can reduce the pressure on the water cycle infrastructure.

Possible activities:

1. The Australian Government to share the lessons learnt from undertaking demonstration projects under the Australian Water Fund and projects under other initiatives such as the Regional Partnerships program.
2. All spheres of government to work together to determine the most appropriate responses to water shortages in coastal areas.
3. All spheres of government work together to get the most efficient use of the limited funds available under the Australian Water Fund and state initiatives.
4. Governments to work with organisations such as the Australian Water Association to develop solutions to water infrastructure needs of communities.

2.3.3 Biodiversity

Biodiversity continues to be lost along the coastline. This is an urgent issue, as once lost it is impossible to regain. Some councils are undertaking extensive work in this area, and some regional NRM organisations have addressed biodiversity decline in their regional strategies. In addition, there is state and Australian government legislation that must be complied with.

Possible activities:

1. The Australian government to undertake a review of regional NRM plans to determine if regional vegetation mapping is taking place.
2. Design processes to achieve better integration between local and regional vegetation mapping to ensure all spheres of government and the regional organisations agree on the quality of vegetation present and the most effective means of managing it.
3. Governments develop a means of valuing ecosystem services, such as those provided through biodiversity.

2.3.4 Climate Change

Climate change is occurring. The longer it takes governments to respond to climate change, the greater will be the cost of undertaking mitigation activities. Undertaking adaptation strategies now can reduce future costs of amelioration. Councils need assistance in developing adaptation strategies.

Possible activity:

1. Develop a generic strategic assessment framework to assist councils in their decision making when undertaking climate change adaptation strategies.

2.3.5 Infrastructure

Infrastructure provision in coastal areas is severely lacking. Much of what is there is also in need of maintenance. Local government alone can not be expected to address this problem, but rather a whole of government approach is required. In some areas, this is occurring, such as in South East Queensland, where a regional strategic plan has been developed.

Possible activity:

1. The state local government associations work with their state governments to develop long term (15-25 year) infrastructure plans. These need to cover all aspects of infrastructure provision and need to be fully funded so they can be implemented. ALGA to work with the Australian Government to ensure a whole of government response.
2. Where infrastructure plans have been developed, momentum must be maintained to continue developing and implementing the plans, in a whole of government approach.

2.3.6 Funding

None of these measures are possible without adequate funding. Current funding is not adequate for environmental, human services or infrastructure requirements. There are a number of options available, from introducing a national environment levy, to having special purpose payments for coastal zone management purposes.

Possible activities to improve funding could include:

1. Local government to receive as untied general purpose funding, at least 1% of total Commonwealth taxation revenue.
2. That the Productivity Commission be asked to consider other financial means of assisting sea change councils to meet infrastructure demands.
3. The Australian Government allocate $28.8 million over four years¹ to assist councils to build their capacity for planning and NRM management in coastal areas which in turn will assist the Australian government to meet their environmental outcomes.

2.4 Funding for coastal zone management

This paper outlines the numerous initiatives in relation to coastal zone management that councils undertake. However, their ability to leverage funding for such projects has fallen greatly in recent years. With the introduction of the second phase of the NHT, there is no longer a dedicated coastal funding pool. If coastal issues are not viewed as a priority by the region, councils are unable to seek NHT/NAP funding. The ALGA survey of coastal councils found that only 43 per cent of coastal councils believed their coastal issues were dealt with adequately through the regional arrangements. A range of reasons were provided, including a perceived lack of awareness by the regional organisations on the extent of the problem, a belief by the regional organisations that the issues should be dealt with by local government and a focus on inland issues in the regional investment strategies. As such, the flow of funding to councils undertaking coastal projects has fallen significantly.

Options

This highlights the need for improved coordination between regional and local staff through improved relationships between the regional organisations and local governments. The issues facing the coastal zone are an excellent opportunity to get these two groups working together to achieve improved environmental outcomes.

It may be a case of requiring more resources to be devoted to coastal issues under NHT/NAP. For instance, local coastcare facilitators are an excellent means of leveraging support from local communities to undertake volunteer work and to generate corporate sponsorship for coastal projects. These facilitators need to be employed by the regional organisations, however if the regional organisations do not see coastal zone management as a priority, they are unlikely to see the value in keeping their coastcare facilitators. Some coastal issues need to be attacked at a scale greater than the region, and in these cases funding under the state or national components of NHT are required. More effective funding methods should be explored.

Issue

Insufficient funding for coastal zone management projects

Pressure

Changes to the way funding is delivered combined with an increasing need for additional funding

Current situation

Inability of councils to leverage funding for coastal projects.

Outcome

Better co-ordination of funding for coastal projects, a higher priority for such projects in regional NRM plans and a database of other available funding sources

Action

Explore the various funding sources available for individual councils projects and develop stronger relationships with your regional NRM organisation

2.4.1 Funding Sources

One of the priority issues for councils was identified as a lack of adequate funding to undertake projects in the coastal zone. A brief summary of funding sources is included below. This is not an exhaustive list, but a starting point. In particular, there are going to be significant differences between the states in the funding made available through their agencies for coastal projects. For instance, some states have coastal specific project funding available, others do not.

Environment

Australian Government

NHT/NAP

Biodiversity Hotspots Program

Environment Education Grants Program

Threatened Species Network Community Grants

State government

NHT/NAP

State agency initiatives, eg CoastWest in Western Australia

Regional Natural Resource Management

Regional investment strategies

Local government

Environment levy

Rates

Special purpose grants

Water

Australian Government

Australian Water Fund

State government

State agency initiatives, eg Country Towns Water Supply and Sewerage Program in NSW

Regional Natural Resource Management

Most have programs aimed at improving water quality

Local government

-

Roads

Australian Government

Auslink

Cycle Connect

State government

State agency initiatives eg the State Infrastructure Fund in Tasmania

Regional Natural Resource Management

-

Local government

Local roads expenditure, including Roads to Recovery and Auslink

Climate change

Australian Government

Alternative Fuels Conversion Program

Photovoltaic Rebate Scheme

National Climate Change Abatement Program

State government

-

Regional Natural Resource Management

-

Local government

-

2.5 Summary

There are a number of organisations with an interest in managing Australia's coastal zone. This paper is written for local governments. The issues identified as priorities by councils as part of the ALGA coastal project have been covered in this report. This is not meant to be a definitive list. There are numerous other environmental issues affecting our coast line. Through the development of this discussion paper, ALGA is working towards developing some practical actions in response to development pressures in coastal regions.

Readers are encouraged to send in their views or information they believe will assist ALGA to develop action plans or other councils to better manage their coastline.