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PROTECTING OUR ICONIC COAST AND PARKS Governance of the Great Ocean Road, its land and seascapes Independent Co-Chairs Final Report Great Ocean Road Taskforce August 2018
Dormant
Tower Hill Volcano
30 responsible
organisations
8.6m
visitors a year 2/3
within ten years journeys are
day trips Nearly 170,000
hectares
of Crown land
Up to
Over
12,000 visitors
a day to the 12 Apostles
200
shipwrecks 5.8m
visitors spent
$1.3b
2cm/yr generating
the rate at which the cliffs
are being eroded
From 1846, the 12 Apostles
were once known as limestone
“The Sow and Piglets” 7 stacks (out of
the original 9),
known as the
12 Apostles
Eastern Maar and B100
The Great
Wadawurrung Ocean Road
People have known is the world’s
and cared for this largest war
Country for at least
Infographic In
2011 memorial
35,000 Added to the
National Heritage List
years
Rip Curl Pro at Bells
Beach is the world’s
2
longest running
surfing competition
National
Parks
24,000
Number of people in Lorne
during the Pier to Pub (up from
normal population of 1,100)
11,200
jobs 2
in the region in
1983 Ash Wednesday bushfires destroyed Marine National
the year ending
Parks
42,000 729
June 2017
and
hectares houses
3
2015 Wye River bushfire destroyed Marine National
Sanctuaries
Rare polar dinosaur
2,260 and 115
fossil sites hectares houses
Traditional Owners The Great Ocean Road Taskforce proudly acknowledges the
Eastern Maar and Wadawurrung People as the traditional
custodians of the Great Ocean Road region. We pay our respects
to their Ancestors and Elders, past and present. We recognise and
respect their unique cultural heritage, beliefs and relationship to
their traditional lands, which continue to be important to them
today.
We recognise the intrinsic connection of the Eastern Maar and
Wadawurrung People to their traditional lands and value the
contribution their caring for Country makes to the management of
the Great Ocean Road region, its land, its waterways, its coastlines,
and its seas.
We support the need for genuine and lasting partnerships with
the Eastern Maar and Wadawurrung People to understand their
culture and connections to Country in the way we plan for, and
manage, the Great Ocean Road region. By integrating traditional
ecological knowledge with contemporary western ecological
knowledge, we can deliver better environmental outcomes and
make communities more liveable, sustainable and inclusive.
We embrace the spirit of reconciliation, working towards equity of
outcomes and ensuring an equal voice for Australia’s First People.
Left to Right Corroboree Garden, Great Ocean Road Chocolaterie & Ice Creamery. Adnate mural, Warrnambool Source: City of Warrnambool Purpose This document is the Great Ocean Road Taskforce Co-Chairs report to Government proposing reforms to the management arrangements of the Great Ocean Road. It has been developed in consultation with the Great Ocean Road Taskforce, a project reference group, key stakeholders and the community. It is a direct response to the issues raised by local communities.
Foreword
The Great Ocean Road is one of the most popular tourist destinations in Australia,
attracting more visitors than Uluru and the Great Barrier Reef combined.
It’s easy to see why. The Great Ocean Road, like many international tourist
destinations, has been challenged by increased visitor numbers.
The seasons provide an ever-changing sea and landscape for
That challenge will intensify in coming years. The Road is also
visitors to marvel at and enjoy.
increasingly challenged by the forces of nature – and the
From the bustling seaside resorts and beach lovers’ paradise impacts of climate change.
in warmer months, to the wild and untamed waters of the
We have taken the view that the most important aspect of the
colder months, to the splashes of colour across the bush in the
visitor economy is protecting the region’s environmental assets.
wildflower season, there is always something to marvel at and
absorb throughout the year. Environmental protection is the major task, but to do nothing
is not an option. We cannot afford to wait and react to each
Sited on the traditional lands of the Eastern Maar and
phase in growth of visitors to the region or severe events. Strong
Wadawurrung People, huddled between coastal reserves,
leadership and major institutional change is required to protect
national parks, and marine national parks, incorporating
the iconic coast and parklands for the benefit and appreciation
significant cultural and heritage locations and farmlands, the
of future generations.
Great Ocean Road, together with its seas and landscapes, needs
to be protected and preserved for this generation and future Land managers and the local communities along the corridor
generations to marvel at and enjoy. support the proposed establishment of a new statutory authority.
Having a new statutory authority will create a clarity of purpose
The Great Ocean Road belongs to all Victorians. As a
and a single point of accountability to lead the protection of
consequence, the residents, visitors and tourists who enjoy the
the iconic coast and parklands along the Great Ocean Road –
Great Ocean Road share a responsibility to protect and preserve
facilitating the kind of sustainable tourism that provides a great
its iconic landscape. The vast bulk of visitors to the Road come
visitor experience.
from across Victoria. These Victorian tourists have a leadership
role to play – demonstrating to visitors from other states and We commend this report to the Minister for Planning, the Minister
overseas that it is possible to enjoy and protect this precious for Regional Development, the Minister for Tourism and Major
Country. As Victorians, we need to show the world the true Events, the Minister for Energy, Environment and Climate Change
meaning of the maxim: “Leave it as you found it.” and the Minister for Roads and Road Safety – and to the people
of Victoria.
Visitors to the Road need to understand that they are visiting
and travelling along a war memorial. They should reflect on the
courage and determination of the returned soldiers who carved
this world-famous road from rock with just picks and shovels. Hon Peter Batchelor and Hon Terry Mulder
They also need to understand the need to protect the cultural Co-Chairs Great Ocean Road Taskforce
values and the local environment.
Hon Peter Batchelor and Hon Terry Mulder, Co-Chairs Great Ocean Road Taskforce
Acknowledgement It has been our privilege to undertake this independent Thank you to all the members of local communities
review of governance arrangements over the past 10 who so generously participated in, and contributed
months. We would like to thank the Taskforce members their time, knowledge and experience. As we travelled
for giving their time generously to the review, regular up and down the Great Ocean Road (the Road), we
meetings, range of pertinent inputs, wise advice, and saw and heard many things that made us appreciate
for their openness and willingness to engage as we the complexity of the governance arrangements,
challenged ideas. This was greatly appreciated. Thanks and the importance of bringing focus and a single
to Andrew Mason, Bruce Anson, Corrina Eccles, David point of accountability to the challenges ahead. We
Madden, Diane James AM, Elaine Carbines, Jamie met many passionate people along the Great Ocean
Lowe, Jason Mifsud, Keith Baillie, Paul Davis, Peter Road who shared their insights and concerns. They
Brown, Robert Dobrzynski, Tony McGann and Wayne have challenged and inspired us. Every conversation
Kayler-Thomson. threw up something new for us to contemplate. Thank
you also to everyone who provided written feedback
Whilst responsibility for this report is taken by us, to the Governance of the Great Ocean Road Issues
as independent Co-Chairs of the Great Ocean Road Paper. Your feedback created a deep evidence base
Taskforce, we have received excellent professional on which we have drawn in the formation of our
advice and assistance from a range of people and recommendations.
organisations which has been most helpful and taken
on board. Thank you to the Regional Directors of Barwon South
West (Department of Environment, Land Water and
Thank you to the Mayors and Councillors who provided Planning, and Regional Development Victoria) for their
great local knowledge and illustrations of the key support and guidance. Thanks also to the Secretariat
issues. We appreciated the frankness of your advice Team for their expertise, professionalism and hard
and openness in sharing your experiences. work as we navigated our complex task, and to those
To the officers of the responsible public entities who who provided expert support.
generously sought answers to our enquiries and Finally, we would like to thank the Victorian
provided briefings, to the reference group members Government for the opportunity to undertake this
and workshop participants, we say thank you. work. Whilst a complex and at times challenging task,
Particular thanks go to the CEOs and Board members we have found it rewarding.
of Parks Victoria, Great Ocean Road Coast Committee
and Otway Coast Committee for the frank and The Great Ocean Road Region is truly an important
forward-looking conversations about the challenges Victorian asset belonging to all the people of Victoria. It
and opportunities ahead. is, “Our Great Ocean Road” and needs to be looked after
for the enjoyment of all.
Contents
List of recommendations 8 Crown land management is fragmented Portfolio based government investments 46
1. Introduction 12 and inefficient 31 Lack of strategic regional infrastructure planning 46
Crown land management along the Great Ocean Road No centralised knowledge management 47
Background to the review 12
is highly fragmented 31 Inefficient government investment delivery 47
Regional advocacy for change 14 Inadequate attention to, and investment in, protecting Significant joint State and Commonwealth projects ahead 47
Great Ocean Road Taskforce 15 coastal assets (natural and built) 34
The Great Ocean Road competes with projects across
The environmental condition of coastal and marine
Review process 16 the state for funding 47
environments needs monitoring 36
2. Community engagement 20 The critical gap – an absence of overarching
There are conflicts and tensions associated with
Who we heard from 20 coastal consent permit processes 36 coordinative management 48
What we heard 22 There are considerable inefficiencies and a red-tape 4. Real risks 52
burden in public land administration 36
Major change is required – doing nothing is not an option 22 Risk of reputational damage -
Nature and the environment are the most valued Partnerships with Traditional Owners present the touring route is at a tipping point 52
elements of the Great Ocean Road region 22 an exciting opportunity 38 Risks to the ongoing operation and function
Each community is unique and has its own distinct identity 22 Significant cultural (tangible and intangible) values of the Great Ocean Road 52
mapping required 38
Management of traffic and tourism visitation needs
Short-term and local interests prioritised 54
to change 22 Traditional Owner involvement in natural resources
More emphasis is needed on environmental protection,
management is increasing 39 Environmental risks 54
road safety and climate change implications 23 Land-use planning lacks a clear strategic Missed opportunities 54
There is strong support for the establishment of a single direction 40 5. Recommendations 58
entity to manage the Great Ocean Road 24 Planning hierarchy connects state, regions and local
State policy position 59
An agreed vision and a holistic strategic framework plan priorities 40
is needed 25 Limited strategic direction 40 A new overarching planning framework 62
Development of a robust funding model is essential 25 The visitor economy is important to the future prosperity Institutional changes 68
Further engagement on any new governance of the region 42 Sustainable funding model 75
arrangements should occur 25
The visitor economy is an important industry Supporting initiatives 76
3. Key Findings 28 for the Great Ocean Road region 42
Appendix A – Terms of Reference 92
An international destination of national Visitor numbers are steadily growing 42
significance 28 The number of visitors will continue to grow, even if we
Economic and iconic brand value 28 do nothing 43
Traditional Owner value 28 The visitor experience could be improved 44
Environmental value 28 The challenge is to increase the local benefit from visitors 45
Social value 29 There is no forum with status for local community input 45
A holistic approach to protect its benefits 29
Protecting our iconic coast and parks
List of recommendations
Recommendation 1 activities and decision making Recommendation 11
• prioritises preservation of the ecological and
Recognise the national significance of the Great Ocean Establish a standing advisory committee to the Minister
landscape integrity of coastal and marine
Road and its iconic coastal landscapes in State policies for Planning for the Great Ocean Road region (under
environments
and establish a commensurate decision-making Section 151 of the Planning and Environment Act 1987) to
• includes planning for sustainable visitation and streamline planning approvals and provide independent
framework with a focus on its preservation, sustainable
travel along the touring route expert advice on sustainable land development.
economic development, and a great visitor experience.
• is developed with community participation
• is reviewed every 10 years FUNCTIONS:
Recommendation 2 i. Act as a review panel for planning scheme
• identifies elements that organisations must have
Adopt this proposition and five objectives to provide regard to, and those that are binding. amendments and planning permit applications
direction to the governance arrangements and decision- that are “called-in” by the Minister
making frameworks. ii. Act as a land-use and design review panel for
Recommendation 6
The iconic landscapes along the Great Ocean Road the responsible authorities for visitor economy
have outstanding natural, heritage and cultural values Establish planning guidelines to accompany the development proposals that are consistent with
and are to be treated as the one integrated and living strategic framework plan that provide clear direction the strategic framework plan and associated
entity for protection and the appreciation of future on appropriate land-uses and development design planning guidelines
generations. standards across the area. iii. Act as a review panel for coastal and marine
i. Protect the ecological and landscape integrity of management plans, and consents to use or
coastal and marine environments Recommendation 7 develop marine and coastal Crown land in the
Great Ocean Road Coast and Parks
ii. Strengthen Traditional Owner involvement Establish local community reference groups along the iv. Provide policy and strategic advice to the Minister
iii. Protect distinctive areas and landscapes Great Ocean Road to provide input and guidance to on:
iv. Grow the local, state and national visitation the development of the strategic framework plan.
a. development and operation of the
economies
Great Ocean Road Strategic Framework Plan
v. Modernise governance. Recommendation 8 b. protection of coastal environments and
Establish a statutory requirement to audit and report Crown land
Recommendation 3 c. protection of the coastal public land footprint
annually to Parliament on the implementation of the
Recognise and protect the marine waters and coastal strategic framework plan by the responsible public and public foreshore access
land along the Great Ocean Road as the state significant entities. d. sustainable visitation management of the
‘Great Ocean Road Coast and Parks’ for protection, care Great Ocean Road Coast and Parks
and investment. Recommendation 9 e. related matters referred by the Minister.
Establish a statutory requirement for the SKILLS:
Recommendation 4
Commissioner for Environmental Sustainability to Whilst the advisory committee can seek expert skills as
Establish a statutory requirement to develop a shared periodically assess and report on the environmental required, its membership would need to include all of
vision for the Great Ocean Road region with a long- condition of the Great Ocean Road Coast and Parks the following skills:
term outlook (50+ years). as part of the regular reporting on the State of the
• strategic and statutory land-use planning
Environment in Victoria.
• architecture, urban design and landscape
Recommendation 5 architecture
Recommendation 10 • marine and coastal environmental science
Establish a statutory requirement to develop and
maintain an overarching Great Ocean Road Strategic Support the Eastern Maar and Wadawurrung to map • transport planning
Framework Plan that: their cultural values in the Great Ocean Road Coast • Traditional Owner values
• gives effect to the vision and Parks. • heritage
• provides direction to municipal and agency • tourism and economic viability.
8Great Ocean Road Final Report
Recommendation 12 Road Coast and Parks Recommendation 19
• purchase, consolidate, take on, transfer or
Streamline planning approvals by providing planning Review the public land commercial tour operator and
otherwise acquire land for inclusion in the Great
services to supplement the councils’ capacity to assess commercial activity provider licences system.
Ocean Road Coast and Parks
large and complex land development projects and
ensuring that referral agencies are adequately resourced. • visitor operations in or on the Great Ocean Road
Coast and Parks Recommendation 20
Recommendation 13 INDEPENDENT SKILLS BASED BOARD OF EXPERTS COVERING: Establish a working group to identify opportunities for
• land-use planning and landscape architecture shared municipal-like services delivery along the Great
Establish a new statutory authority, the Great Ocean Road Ocean Road and develop an implementation plan.
• marine and coastal environmental science
Coast and Parks Authority, with an independent chair and
skill-based board, to manage the coastal Crown land and • travel, tourism, hospitality and leisure
• finance and investment facilitation
Recommendation 21
marine parks along the Great Ocean Road.
• construction management Review and align anomalous Crown land reservations
FUNCTIONS:
• natural resource management and parcel information within the Great Ocean Road
The primary purpose is to protect and manage visitation
• Eastern Maar and Wadawurrung values Coast and Parks with the directions of the strategic
of the Great Ocean Road Coast and Parks, to:
framework plan.
• protect and enhance the ecological and landscape • heritage values management.
integrity of the coastal parks and marine areas
along the Great Ocean Road Recommendation 14 Recommendation 22
• protect coastal assets (natural and built), the Conduct a capacity analysis for the Great Ocean Road
Establish local community advisory committees, an
coastal public land footprint, and community (the road, coast and marine environments, parks and
environmental advisory committee, and a tourism industry
access key destinations, accommodation, coastal towns) and
advisory committee as ongoing forums for involving local
• prepare for, and manage, the impacts of natural identify visitation management options.
communities and key stakeholders in the management of
forces on, and climate change risks to, coastal the Great Ocean Road Coast and Parks.
public land and assets. Recommendation 23
OTHER PURPOSES: Recommendation 15 Develop a sustainable visitation management strategy for
• sustainable visitation management including: the Great Ocean Road Coast and Parks.
Enshrine the new governance arrangements for the
-- operation of visitor facilities and camping Great Ocean Road, its landscapes and seascapes in
grounds stand-alone legislation that includes a preamble by Recommendation 24
-- issuing of permits for events and commercial the Traditional Owners.
activities, leases and licenses Review the risks to the ongoing operation and function
of the Great Ocean Road and develop a longer-term
-- regulation of commercial operation in, on or
Recommendation 16 transport network strategy.
around the Crown land and marine parks
• support the involvement of the Traditional Owners Strengthen the capacity of the Eastern Maar
in the management of cultural values and natural and Wadawurrung to actively participate in the Recommendation 25
resources (including Crown land) management of their traditional lands.
Work with Road Safety Agencies to review and identify
• coordinate government construction projects and the priority projects to improve the safety and well-
disruptions along the Great Ocean Road Recommendation 17 being of travellers along the Great Ocean Road.
• deliver construction projects
Establish long term funding arrangements for the
• facilitate appropriate economic development new authority. Recommendation 26
• educate and foster community stewardship (and
volunteerism) of coastal land. Establish the visitor expectations and emergency
Recommendation 18 services benefits of enhanced digital connectivity
POWERS REQUIRED TO: in towns, and connection to mobile phone services
Review the long-term risks from coastal erosion and
• ensure funds raised (from caravan parks and between towns, along the Great Ocean Road..
inundation, severe weather events and climate change
leases etc) can be collected, held, remain with, and on coastal Crown land and assets.
be allocated to initiatives within the Great Ocean
9Teddy’s Lookout
Source: © surfcoastimages
10
Protecting our iconic coast and parksGreat Ocean Road Final Report
Introduction
11Protecting our iconic coast and parks
Introduction
Background to the review
The 243-kilometre long, National Heritage listed Great Ocean Road1 that runs from
Torquay to Allansford is one of the world’s most scenic and iconic coastal touring routes.
Its sheer limestone cliffs, pockets of rainforest, shipwreck history, and world-class surfing
breaks make the Great Ocean Road one of Australia’s most popular destinations for
visitors and Victoria’s premier tourism asset.
It is one of the best sites in the world to efforts) and provided employment
study the entire sequence of limestone for returned servicemen – opening
coast evolution and includes rare polar up access to the dramatic coastal
dinosaur fossil sites, the best known one scenery to day-trippers and tourists.
being Dinosaur Cove. Fossils collected
from numerous sites along the coast Its construction – built by hand as
are rare and continue to yield important close as possible to the ocean – was a
scientific information. momentous engineering feat at the time.
The coastal region is of high cultural, Ever since opening, the Road has been
ecological and economic importance recognised as one of the world’s great
to the Eastern Maar and Wadawurrung ocean drives. Consequently, in 1955 the
People who have known this Country, and Road was the subject of a pioneering
cared for it, since the beginning. planning scheme for coastal and rural
scenery protection and planning.
The Road is also a permanent memorial
to the servicemen who served in World Its coastal towns and settlements are
War 1 and a significant part of Victoria’s home to 24,000 residents2 and it is home
pioneering history. The commemorative to international sporting events such as
road construction project was financed the Lorne Pier to Pub Ocean Swim, the
by the Great Ocean Road Trust (with Cadel Evans Great Ocean Road Race and
substantial community fundraising the Rip Curl Pro.
Great Ocean Road construction workers c1920
Source: Heritage Victoria
12It is just 90 minutes’ drive from Melbourne, erosion and inundation. In places,
even closer from Avalon Airport (with the ongoing operation and function
international flights commencing late of the Road itself is at risk from land
2018), and a key destination for Victorians, slippages, coastal erosion and cliff
interstate visitors and international regression (all exacerbated by the
tourists. The Great Ocean Road region impacts of climate change).
is a more popular tourist destination
than Uluru and the Great Barrier Reef Future revenue streams from the
combined – and visitor numbers are caravan parks, which provide vital
expected to keep rising. funds for protecting the nearby coastal
environment, are also uncertain, with the
The combination of environmental loss of some camping sites due to coastal
stressors and increased visitation is erosion and inundation likely.
creating significant challenges.
Significant government investment is
The Road has reached a tipping point. already committed to the maintenance of
Unmanaged visitation and congestion is the Great Ocean Road ($153 million)3 and
destroying the isolated nature experience the development of a visitor centre at the
that is the essence of the attraction. Twelve Apostles (around $100 million)4 .
In addition, the touring route lacks the It’s likely an even greater investment will
necessary visitor amenities for a great be required once strategic assessments
experience (toilets, parking, viewpoints and planning are undertaken.
and signage, mobile telephone signal,
food/beverage offerings, interpretive A century on from the initial survey
information and tourist products). party setting out to peg the route of
the Great Ocean Road, there is an
The natural environment along the urgent need to peg out the governance
Great Ocean Road includes beaches, arrangements required to secure
biodiversity, cliffs, coastal parks, sand the future of the Road and coastal
dunes, coastal plants and animals. environment for the next century.
All are under threat from coastal
Travelling along the Great Ocean Road
Source: Lorne Historical Society
1. The 243-kilometre National Heritage listed length of the Great Ocean Road is from Torquay to Allansford. The heritage listing can be viewed at
http://www.environment.gov.au/heritage/organisations/australian-heritage-council/national-heritage-assessments/great-ocean-road.
2. Population of coastal towns along the Great Ocean Road from Torquay to Allansford (includes Torquay and Jan-Juc and excludes Allansford)
provided by Land Use and Population Research Branch (Victorian Department of Environment, Land, Water and Planning) based on selected data
from Australian Bureau of Statistics Census 1996 to 2016.
3. The Australian and Victorian governments have invested $100 million in the Great Ocean Road Upgrade project to improve safety, and the
experience of Australia’s most visited destination. This extensive program involves resurfacing the road, pedestrian and cycling improvements,
replacement of several bridges and the installation of new drainage at over 100 locations. The Victorian Government has also committed an
additional $53 million to safeguard the geotechnical future of the road following the 2016 floods and landslides at Separation Creek and Wye River.
4. The Victorian Budget 2018/19 invests $153.2 million towards the Geelong City Deal, with funds going to build the new Convention Centre, progress
the Shipwreck Coast Masterplan including the Glenample Visitor Experience Centre at the Twelve Apostles, and advance a strategy to revitalise
the city’s centre. The projects are dependent however on an equal contribution from the Commonwealth Government. 13Regional advocacy for change
The responsible public entities and key stakeholders
(such as the G21 Geelong Regional Alliance, Great Ocean
Road Regional Tourism and local councils) regard the
current approach to protecting the coastal and marine
environments along the Great Ocean Road, visitation
management, public land administration, land-use
planning and community engagement as unsustainable.
They want State Government intervention.
The call for intervention is not new. In 2016, This position is supported by local
the issue was nominated as a priority councils with Colac Otway Shire calling
by the Barwon Regional Partnership at for a fundamentally new approach to the
their Regional Assembly to “Simplify the management of the Great Ocean Road
complex and duplicated management and coast as part of its submission into
arrangements for the Great Ocean Road”. the Government’s Marine and Coastal Act
review, arguing that the coast and road in
It was also highlighted as a priority for the the region are inherently linked:
Great South Coast Regional Partnership
at their regional assemblies in November “Colac Otway is arguing that a single,
2016 and November 2017: appropriately funded and resourced
Great Ocean Road authority should
“The Government consider the be seriously considered.” 5
merits of establishing a coordinated
governance mechanism for the Great
Cadel Evans Great Ocean Road Race 2017
Ocean Road, to ensure a planned,
integrated economically prosperous
approach to this iconic destination.”
Source: Surf Coast Shire
5. Colac Otway Shire media release 24 November 2016
14Great Ocean Road Final Report
Great Ocean Road Taskforce
In May 2017, the Victorian Government Its membership comprises:
allocated $1.3 million in the 2017-2018 •• Independent Co-Chairs:
State Budget to establish the Great
–– the Hon Peter Batchelor
Ocean Road Taskforce (the Taskforce)
(Victorian Minister for Transport
to review the effectiveness of current
from 1999 to 2006)
governance arrangements and
recommend governance reforms. This –– the Hon Terry Mulder (Victorian
original budget has been supplemented Minister for Public Transport
by an additional $625,000 from and Minister for Roads from
Regional Development Victoria who, 2010 to 2014)
in partnership with the Department of •• Nominees of the Traditional Owners
Environment, Land, Water and Planning, of Country for the Great Ocean Road:
are supporting the project delivery. –– Eastern Maar Aboriginal
Corporation: Mr Jamie Lowe
In September 2017 the Victorian
(Chief Executive Officer) and Mr
Government announced the membership
Jason Mifsud (Chair)
of an independently-chaired Taskforce
to review the current governance –– Wadawurrung: Ms Corrina From left to right: Bruce Anson, Peter
arrangements for the Great Ocean Eccles (Manager Geelong Batchelor, Keith Baillie, Jamie Lowe, Wayne
•• The CEOs of the five Local Kayler-Thomson, Diane James, Paul Davis,
Road and its environs and recommend Office) and Mr Paul Davis Elaine Carbines, Tony McGann, Jason
Government Authorities along the
reforms to simplify the management (General Manager) Mifsud, Corrina Eccles, Terry Mulder.
Great Ocean Road: Absent: Andrew Mason, David Madden.
arrangements and: •• Members with expertise and
–– Surf Coast Shire (Mr Keith Baillie)
experience in tourism and coastal
i. strengthen protections of the –– Colac Otway Shire (Mr Peter
management, who understand the
landscape setting Brown/Mr Robert Dobrzynski/Mr
key issues relating to the governance
ii. improve the visitor experience of the Great Ocean Road: Tony McGann)
–– Ms Diane James, AM (former –– Corangamite Shire (Mr Andrew
iii. provide greater certainty in land-
Chair of the Victorian Coastal Mason)
use planning and attract investment
proposals that will benefit visitors Council for over a decade) –– Warrnambool City Council
and local communities. –– Ms Elaine Carbines (Chief (Mr Bruce Anson)
Executive Officer of G21 – The –– Moyne Shire (Mr David Madden)
The Taskforce is overseen by three
Geelong Region Alliance)
coordinating ministers (Minister The full terms of reference of the
for Planning, Minister for Regional –– Mr Wayne Kayler-Thomson
Taskforce are outlined in Appendix A.
Development, Minister for Tourism and (Chair of Great Ocean Road
Major Events) supported by the Minister for Regional Tourism)
Energy, Environment and Climate Change.
15Protecting our iconic coast and parks
Review process
This is a Co-Chairs Report. Its purpose is to provide independent advice to Government on
the effectiveness of the current governance for the Great Ocean Road and its landscapes,
and recommend reforms to simplify the complex management arrangements and:
•• strengthen protections of the Taskforce in consultation with a project As required by their terms of reference,
landscape setting reference group and key stakeholders. the Co-Chairs reviewed past strategies,
•• improve the visitor experience The Issues Paper was publicly released including the implementation of the 2015-
on 21 March 2018 to promote discussion 2025 Strategic Master Plan for the Great
•• provide greater certainty in land-
and seek community feedback about the Ocean Road Region Visitor Economy,
use planning and attract investment
opportunities to improve the oversight and the Shipwreck Coast Masterplan 2015,
proposals that will benefit visitors and
management of the Great Ocean Road the 2004 Great Ocean Road Region
local communities.
region. Strategy and the VicRoads Great Ocean
The Taskforce’s Co-Chairs, in Road Management Strategy 2013. The
Submissions closed at the end of April experience of cooperative efforts during
consultation with the three coordinating
after face-to face conversions with more the Wye River Bushfire Reconstruction
Ministers, decided to compliment the
than 780 people at a variety of locations process was also reviewed.
collaborative approach of the Taskforce
(Melbourne, Torquay, Anglesea, Lorne, Wye
investigations, with the independence
River, Apollo Bay, the Twelve Apostles, Port The Taskforce investigations also included:
of Co-Chair recommendations. These
Campbell, Warrnambool and Port Fairy) •• travelling along the Great Ocean
decisions reflected the terms of
and more than 570 written responses. Road with briefings by the Traditional
reference for the Taskforce and the
forward-looking nature of the review. Owners and officers from key
The Co-Chairs carefully examined
responsible organisations on the key
stakeholder concerns and the views of
The Co-Chairs adopted an issue- issues and opportunities
the community, and in particular those
and-opportunities-led approach to •• holding issues and opportunities
examples that illustrated systemic issues.
INTRODUCTION
examining the current governance identification workshops with key
This analysis identified critical issues and
arrangements for the Great Ocean stakeholder representatives
informed the recommended changes to
Road and its landscapes – including
governance arrangements. The review •• carrying out a desktop review that
the policies, legislation and regulation,
was not a performance review of the examined the governance models of
institutional arrangements, funding,
responsible organisations. Therefore, comparable destinations around the
infrastructure and project delivery.
it did not investigate specific issues, world, in particular the Great Barrier
problems or complaints, including those Reef (Australia), Milford Sound (New
1.
An initial issues paper, Governance of the
Great Ocean Road Region Issues Paper 6 relating to statutory decisions. Zealand), Big Sur (California) and
(the Issues Paper), was developed by the Cinque Terre (Italy)
6. Access online at https://www.planning.vic.gov.au/policy-and-strategy/great-ocean-road-taskforcee
16Great Ocean Road Final Report
Figure 1: Project timeline
May 2017
$1.3 million State budget
allocation
Sep 2017
•• developing and analysing four potential Note that the Taskforce did not Taskforce established
governance options (facilitated by commission any new investigations into
Deloitte Access Economics) management of public land along the
Nov 2017-Feb 2018
•• surveying visitor travel patterns Great Ocean Road as the issues and
deficiencies are well-known, and have been
Critical Issues and
(via people-intercept surveys; the Opportunities identification
observation of vehicle movements at reported on several times in recent years.
Anglesea, Apollo Bay, Lorne and Port
A series of Taskforce meetings over
Campbell; and a number-plate survey
the 10-month duration of this project Dec 2017 – Apr 2018
of vehicles travelling along the Great
also provided a valuable and insightful Investigations
Ocean Road).
discussion forum to explore the issues
In addition, the Co-Chairs considered raised in greater depth and detail –
several recent reports that dealt in contributing to the development of the
Mar 2018
detail with the issues associated with recommendations in this report. The
Release of Governance of the
the management of Crown land. Those Taskforce also undertook a strategic
Great Ocean Road Region
pertinent reports were: options evaluation (facilitated by Deloitte Issues Paper
Access Economics).
•• Protecting Victoria’s Coastal Assets
by the Victorian Auditor General’s The high-level practicability (and
Office (29 March 2018) implementation requirements) of proposed Mar – Apr 2018
•• State-wide Assessment of Public changes were taken into consideration Community consultation
INTRODUCTION
Land Final Report by the Victorian during the framing of recommendations.
Environment Assessment Council A detailed cost benefit analysis of
May 2018
(1 July 2017) the recommendations has not been
Analysis of community
•• Marine and Coastal Act Consultation undertaken however, as this was outside
feedback
Paper (August 2016) and the the scope of the terms of reference.
subsequent Transition Plan,
Strengthening Victoria’s Marine Jun – Jul 2018
1.
and Coastal Management, by the Taskforce deliberations
Department of Environment, Land,
Water and Planning that accompanies
Aug 2018
the Marine and Coastal Act 2018.
Co-Chairs Report to government
17Summer day at Kennett River
Source: © surfcoastimages
18
Protecting our iconic coast and parksGreat Ocean Road Final Report
Community
engagement
19Protecting our iconic coast and parks
Community engagement
The Governance of the Great Ocean Road Region Issues Paper (the Issues Paper) was
released on 21 March 2018 to promote discussion and seek feedback on opportunities to
improve the oversight and management of the Great Ocean Road and its landscapes.
These opportunities included the process was designed to capture a wide views of tourists at the Twelve Apostles,
establishment of a new management range of perspectives. People were invited with a mandarin version of the short-form
model, the development of an overarching to have their say in person; via a written survey also available online.
strategic framework plan, establishing submission; or online via a survey, online
a lead agency and improved funding mapping tool or submission form. Public Community views were provided to the
arrangements. The Issues Paper was open-house sessions were geographically Co-Chairs in face-to-face conversation
available for public comment for six weeks dispersed to capture the views of the with more than 780 people (including
and submissions closed on 30 April 2018. distinct local communities along the direct briefings, listening posts and open
Great Ocean Road, with sessions held house sessions). Written comments
Who we heard from in Torquay, Anglesea, Lorne, Wye River, (online or in hard copy) were also received
Apollo Bay, Port Campbell, Warrnambool with 57 submissions and 516 responses
Given the large study area, and the and Port Fairy. A session was also held in to the 11 questions asked in the Issues
number and diversity of users, local Melbourne to capture part-time residents Paper from a range of government and
communities and visitors interested in stakeholder organisations, community
COMMUNITY ENGAGEMENT
and holiday home owners. A mandarin-
the Great Ocean Road, the consultation speaking park ranger helped capture the groups and individuals.
>780 57 516
face to face submissions surveys
2.
conversations
20Great Ocean Road Final Report
The Governance of the Great Ocean Road Region Issues Paper 6. Do you have any suggested changes to the overarching
proposed a new management model and sought feedback on policy, goals and principles (on pages 40 to 41)?
the following questions.
7. What elements would you like to see covered in a strategic
framework plan for the Great Ocean Road region?
1. What do you love most about the Great Ocean Road and
its landscapes? 8. What are your thoughts about establishing a new
organisation to oversee the development, and coordinate
2. What aspect of the Great Ocean Road and its landscapes
implementation, of a strategic framework plan for the
would you most like to see protected?
Great Ocean Road region?
3. What aspect of the Great Ocean Road and its landscapes
9. What current constraints need to be addressed in the
would you most like to see changed?
future governance arrangements?
4. Do you work for, own or operate a business, or are you a
10. Are there any other management models/options we
member of a community organisation, that benefits from
should consider?
visitors to the Great Ocean Road region? If so, what are
the key issues for the organisation/business? 11. What criteria should the Taskforce use to evaluate the
management model options?
5. Is there any critical issue or opportunity that we have
missed (in chapter 3 of this Issues Paper)?
A number of key messages emerged from the community
engagement process:
COMMUNITY ENGAGEMENT
• Major change is required - doing nothing is not • There is strong support for the establishment of
an option. a single entity to manage the Great Ocean Road
and its environs.
• Nature and the environment are the most valued
elements of the Great Ocean Road region. • A shared vision of the future for the region and a
strategic framework plan is needed.
• Each community along the Great Ocean Road is
unique and has its own distinct identity. • Development of a robust funding model is
essential.
• Management of traffic and tourism needs
to change. • Further engagement on any new governance
2.
arrangements is desired.
• More emphasis is needed in the final report
on environmental protection, road safety and
climate change implications.
21Protecting our iconic coast and parks
What we heard
Major change is required – highly prized, as are the flora and fauna. “The sense of community in the
doing nothing is not an option Coastal views were frequently described townships dotted along the route
as magical, pristine and spectacular, and must be preserved and protected.”
Most stakeholders and members of the landmarks such as the Twelve Apostles
community that spoke to us agreed that and Loch Ard George highlighted as “Issues are different at this end
major change is required. unique. The contrast of experiences along of the Great Ocean Road”
the Great Ocean Road – dramatic coastal
There is a high level of support for major Overdevelopment and commercial
views, the rainforest and the farming areas
changes to the existing management development were frequently described
– were highly valued. Consequently, the
arrangements as they are perceived as being detrimental to the natural
aspects of the Great Ocean Road region
to lack co-ordination, are too complex environment and vistas. Prevention
that people wanted to see protected were
to navigate and involve too many of ribbon development along the
nature and the environment.
responsible agencies. The current system coast through the protection of areas
is perceived to be inefficient, bureaucratic between townships was highlighted
Each community is unique and has
and creating inequities between local as a key issue requiring action.
its own distinct identity
government areas as to where funding is
allocated for critical infrastructure. Many respondents highlighted the Management of traffic and tourism
uniqueness of the towns along the Great visitation needs to change
We were told that changes to Ocean Road, with each having its own
management arrangements needs to Transport and traffic management were
identity and issues. The uniqueness,
happen as quickly as possible. identified as the aspects people most
or feel or vibe, of each township was
COMMUNITY ENGAGEMENT
wanted to change about the Great Ocean
frequently described as a highlight. The
Nature and the environment are the Road region.
sense of community in townships was
most valued elements of the Great highly appreciated, and there was a Road condition, road use and road safety
Ocean Road region strong community ethos to care for the were frequently mentioned. Respondents
environment. Liveability for residents was identified the need for the widening of
“The landscape is iconic for Australia, and
another key theme. The history and heritage roads, additional pull-over lanes, speed
the balance between the native flora and
of the region is highly prized and frequently limits, verges, traffic management, driver
fauna on one side and the rugged ocean
described as important to the identity of the education, traffic lights, and shared-user
scenery on the other is breathtaking
Great Ocean Road and its surrounds. paths for cycling and walking. The need
natural environment”
to better manage congestion on peak
Feedback overwhelmingly identified the Protection of townships from
days (with increased numbers of tourist
2.
nature experience and the environment overdevelopment was also a strong theme
buses and vehicles) was highlighted
as the elements most loved about the in feedback. Residential development
and improved public transport options
Great Ocean Road region. The vast, was frequently mentioned as having a
such as more local buses and trains
unspoiled landscapes and seascapes are negative impact on township size.
were suggested. The inability to take
22Great Ocean Road Final Report
Figure 2: Responses to the question “What do you love most about the Great Ocean Road and its landscapes?”
forests open uniqueness
mountains community windy unique developed
rugged place road pristine protected
natural
fauna feel history
peaceful busy bush landscape
close
views ocean
general water
air coast
walk like
flora people
great clean free wildlife
small vista
nice lots beautiful
quiet
drive beauty
great
weather coastline
groups view
roads beach scenery
road
sea
beachestowns
scenic see care look
peace cliffs things
forest
unspoiled
apostles
landscapes
good driving
bushland nature space
walking stunning
environment
The more frequently a specific word is used in a response, the bigger and bolder it appears in the word cloud
surfboards and bicycles on buses was to provide and maintain public facilities in the Issues Paper. However, the
also raised as a deterrent to increased such as rubbish bins and toilets to cater community felt that there was an over-
public transport use. for visitors. emphasis on the economic development
of the region and insufficient emphasis on
The management of visitation, The carrying capacity of the Great
COMMUNITY ENGAGEMENT
the protection of the environment.
particularly congestion at key sites, Ocean Road, the towns along it, and the
and the need to limit visitor numbers to environment, was also identified as a key Issues identified as having been missed
ensure an enjoyable experience, was also issue that needs investigation. included the need to recognise the
identified as a key issue requiring action. distinctive characteristics of each
The provision of tourism infrastructure The opportunity to enhance the visitor community along the Great Ocean
– including sheltered rest stops, viewing experience through the interpretation of Road, and the consideration of the
points and parking facilities – was Aboriginal culture, history and heritage emergency management implications
identified as an urgent tourism need to was mentioned by a number of people. of high visitation days, which usually
provide a great visitor experience. occurs during the highest fire risk period.
More emphasis is needed on
Feedback also requested more emphasis
Another concern was the responsibility for environmental protection, road be placed on road safety and the
2.
provision of facilities for large numbers safety and climate change implications of climate change.
of visitors in the absence of a dedicated implications
funding stream, with local communities Respondents generally supported the
receiving very little return from visitors. Feedback confirmed that, in general, proposed policy, goals and principles with
Local communities highlighted the need most of the key issues had been captured some refinements suggested.
23There is strong support for the guidance on appropriate development,
establishment of a single entity to streamline planning processes and
manage the Great Ocean Road provide certainty for all involved.
There was strong support for the Respondents said that any new entity
establishment of a single entity that has must have appropriate dedicated
the legislative power and ongoing funding ongoing funding to support its functions.
mechanisms to plan and/or manage
“A new authority/body must have the
the Great Ocean Road region (including
legislative functions and authority to
support from most public entities).
carry out its remit that covers all of the
However, this support was often qualified
aspects of the Great Ocean Road region
with the need for a corresponding
i.e. infrastructure, tourism, economies and
reduction in the total number of entities
environment.”
currently managing the Great Ocean
Road region to avoid adding another A number of respondents commented
layer of bureaucracy and complexity, or on the composition of the Board of
risking duplication. any new entity. Some thought a skills-
based board would be appropriate,
Respondents felt that a single entity
others preferred having designated
would provide leadership, a single point
positions for key stakeholders. Local
of accountability, a reduction in red
communities emphasised the need for
tape, and a coordinated planning and
community participation in decision
delivery approach for the implementation
making and a direct connection
of the strategic framework plan and
to the Board. Concern was also
maintenance works along the Great
expressed that decisions affecting local
Ocean Road region (shifting away from
communities would be made by a body
the current piecemeal approach).
removed from the local community.
“…bringing a collaborative and
A small number of submissions
deliberative approach to solving some
and respondents desired further
of the very challenging issues facing the
consultation to occur on new
protection and improvement of the Great
governance arrangements.
Ocean Road and environments would be
an excellent step forward.” Concerns were also expressed
Community consultation,
about the time needed to establish
A strong theme emerging from feedback
any new body, and the need for
Twelve Apostles
was that public land should be managed
immediate action on the ground.
centrally. A single entity was seen
by respondents as a way to provide
24Great Ocean Road Final Report
Figure 3: There is strong support for establishing a new authority
(Total number of responses = 189)
Individual (n=123) 64% 27% 9%
Community & User Groups (n=16) 63% 31% 6%
Business (n=26) 73% 15% 12%
Peak Body (n=9) 78% 11% 11%
Responsible Entity (n=15) 80% 13% 7%
Support Unsure/Under Consideration Not Support
An agreed vision and a holistic Development of a robust funding Further engagement on any new
strategic framework plan is needed model is essential governance arrangements should
occur
There was widespread support for Most respondents stressed the need for
the development of an agreed vision the development of a robust funding Community and stakeholders held a
for the region, as well as a statutory model to support the future of the consistent view that they would like
strategic framework plan that provides region. Respondents felt that any new to be consulted on future governance
COMMUNITY ENGAGEMENT
direction for land-use, landscape organisation should have funding to arrangements.
management and visitor facilities and support the operations and the planning
amenities. Respondents suggested that and delivery of key projects, including Whilst Council supports in principle the
the strategic framework plan should roads, tourist infrastructure and proposition of a single management
balance environmental protection environmental care and protection. authority for the Great Ocean Road,
and tourism levels through the control Council is concerned to ensure there is
of visitor numbers, provide guidance A key suggestion included the ongoing further consultation on the preferred
for development, and include an provision of both state and federal recurrent governance arrangements which are
infrastructure plan for future investment, funding to maintain and upgrade the Great finally recommended by the Taskforce
renewal and maintenance. Ocean Road, given its importance to the before the recommendations are
state and national economy. adopted by Government.’
2.
Many respondents felt that future- – Corangamite Shire Council
proofing and planning for visitation of the Respondents were clear that any funding
wider region should be a consideration. generated in the region should stay in the More detailed information on community
region, with the revenue administered by feedback can be found in the Community
the new entity. Views report7.
7. The Community Views Report can be viewed online at https://www.planning.vic.gov.au/policy-and-strategy/great-ocean-road-taskforce 25The Apostles at sunset
Source: © surfcoastimages
26
Protecting our iconic coast and parksGreat Ocean Road Final Report
Key findings
27Protecting our iconic coast and parks
Key Findings
An international destination of national significance.
Economic and iconic brand value to identify, harvest and utilise natural reserves of state significance – are
resources sustainably. rich with Australian native wildlife9. The
In the year ending June 2017, the Great place supports a wide range of plant
Ocean Road attracted 5.8 million visitors. The region has a high concentration communities, ranging from tall wet
Those visitors spent $1.3 billion and of Aboriginal archaeological sites eucalypt forest to coastal heathlands.
supported 11,200 jobs in the region8. This because the coastal environment was
tourism is a significant economic driver an important resource for the Eastern Remarkable underwater structures
for the region and vital to Victoria’s Maar and Wadawurrung People. Natural along the coastline provide a
visitor economy. resources like the spear wood from the complex foundation for magnificent
forests and brightly coloured ochres from habitats, such as kelp forests and
Traditional Owner value the coastlines along the Great Ocean colourful sponge gardens. The marine
Road were also highly valued and traded environment supports seabirds, seals,
The coastal and forested landscapes
with neighbouring Aboriginal groups. lobsters, reef fish and sea spiders. The
along the Great Ocean Road are of
intertidal and shallow subtidal reefs
exceptional cultural, ecological and Environmental value along the Great Ocean Road have the
economic importance to the Eastern
greatest diversity of invertebrates on
Maar and Wadawurrung People with The coastline along the Great Ocean
limestone reefs in Victoria.
evidence of their connection to Country Road is the best site in Australia, and one
dating back over 35,000 years. of the best sites in the world, to study Marine mammals also visit the area.
the entire sequence of limestone coast Visitors can see Little Penguins which
The natural features along the Great evolution. It also includes rare polar nest in caves below the Twelve Apostles
Ocean Road are embedded in Traditional dinosaur fossil sites, the best known one
KEY FINDINGS
(after dark or in the early morning). And,
Owner culture, spirituality and wisdom. being Dinosaur Cove. almost every year between June and
Sacred sites and stories associated
September, Southern Right whales return
with places along the road have been The parks along the Great Ocean
to the waters off Warrnambool’s Logans
handed down by their ancestors and Road – including the Port Campbell
Beach – swimming as close as 100 metres
elders. Traditional ecological knowledge National Park, Twelve Apostles Marine
from the shore.
and land management techniques were National Park, the Great Otway National
3.
used (such as fire and seasonal farming) Park, and many parklands and coastal
8. Source: Tourism Research Australia’s National and International Visitor Survey for Year ending, June 2017 with modelling and interpretation by Deloitte Access Economics.
9. Altogether the Road has nearly 170, 000 hectares of Crown land, all of which are managed and administered under a variety of Victorian and Commonwealth legislation.
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