B100

PROTECTING OUR ICONIC COAST AND PARKS Governance of the , 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 12,000 visitors Over 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” stacks (out of 7 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 CountryInfographic for at least In 2011 memorial 35,000 Added to the years National Heritage List

Rip Curl Pro at Bells Beach is the world’s longest running 2 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 June 2017 Parks 42,000 and 729 hectares houses 3 2015 bushfire destroyed Marine National Sanctuaries and Rare polar dinosaur 2,260 115 fossil sites hectares houses Traditional Owners outcomes andensuring anequal voice for ’s First People. We embrace thespiritof reconciliation, working towards equity of make communities more liveable, sustainable andinclusive. knowledge, we candeliver better environmental outcomes and ecological knowledge withcontemporary western ecological manage, theGreat Ocean Road region. Byintegrating traditional culture andconnections to Countryinthe way we planfor, and the Eastern MaarandWadawurrung Peopleto understand their We the need for with genuine and lasting partnerships support and itsseas. the Great OceanRoad region, itsland,waterways, itscoastlines, contribution theircaringfor Countrymakes to themanagementof Wadawurrung Peopleto theirtraditional landsandvalue the We recognise theintrinsicconnectionof theEastern Maarand today. their traditional lands, which continue to be important to them respect theirunique cultural heritage, beliefs andrelationship to to theirAncestors andElders, pastand present. We recognise and custodians of theGreat OceanRoad region. We payourrespects Eastern MaarandWadawurrung Peopleasthetraditional The Great OceanRoad Taskforce proudly acknowledges the Left to Right Corroboree Garden, Great Ocean Road Chocolaterie & Ice Creamery.

Adnate mural, 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 . 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 and opportunitiesahead. forward-looking conversations about thechallenges and Otway CoastCommittee for thefrank and of Parks Victoria, Great OceanRoad CoastCommittee thanksParticular goto theCEOs andBoard members and workshop we participants, saythankyou. provided briefings, to the reference group members generously soughtanswers to ourenquiries and To theofficers of the responsible publicentitieswho and openness insharingyour experiences. issues. We appreciated thefrankness of your advice great localknowledge andillustrations of thekey Thank you to theMayors andCouncillors whoprovided on board. organisations andtaken whichhasbeenmost helpful advice andassistance from arange of peopleand Taskforce, we have received excellent professional of theGreatas independentCo-Chairs OceanRoad Whilst responsibility for istaken thisreport by us, Kayler-Thomson. Brown, Robert Dobrzynski, Tony McGannandWayne Lowe, JasonMifsud, Keith Baillie, PaulDavis, Peter Madden, DianeJamesAM,ElaineCarbines, Jamie to Andrew Mason,BruceAnson,CorrinaEccles, David challenged ideas.Thiswas greatly appreciated. Thanks for theiropenness andwillingness to engageaswe meetings, range inputs, of wiseadvice, pertinent and for givingtheirtimegenerously to thereview, regular months. W review of governance arrangements over thepast10 It hasbeenourprivilegeto undertake thisindependent e w ould like to thanktheTaskforce members

we have found itrewarding. work. Whilstacomplex andattimeschallengingtask, Government for the opportunityto undertake this Finally, we would like to thanktheVictorian who provided expert support. work aswe navigated ourcomplex andto task, those Team for theirexpertise, professionalism andhard andguidance.support Thanks alsoto theSecretariat Planning, andRegional Development Victoria) for their West of Land Water Environment, (Department and Thank you to theRegional Directors of Barwon South recommendations. on whichwe have drawn intheformation of our Paper. Your feedback created a deepevidence base to theGovernance of theGreat OceanRoad Issues you alsoto everyone whoprovided written feedback threw upsomethingnew for us to contemplate. Thank have challengedandinspired us. Every conversation Road whoshared theirinsightsandconcerns.They met many passionate peoplealongtheGreat Ocean point of accountability to thechallengesahead.We and theimportance of bringingfocus andasingle the complexity of thegovernance arrangements, saw andheard many thingsthatmadeus appreciate up anddown theGreat OceanRoad (the Road), we their time, knowledge andexperience. Aswe travelled who sogenerously participated in,andcontributed Thank you to allthemembers of localcommunities for theenjoyment of all. is, “Our Great OceanRoad” andneedsto belooked after Victorian asset belongingto allthepeopleof Victoria. It The Great Ocean Road Region istrulyanimportant 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 Background to the review 12 Crown land management along the Great Ocean Road No centralised knowledge management 47 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 Review process 16 The environmental condition of coastal and marine 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 management is increasing 39 Environmental risks 54 More emphasis is needed on environmental protection, 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 framework with a focus on its preservation, sustainable streamline planning approvals and provide independent travel along the touring route economic development, and a great visitor experience. expert advice on sustainable land development. • is developed with community participation FUNCTIONS: Recommendation 2 • is reviewed every 10 years • identifies elements that organisations ustm have i. Act as a review panel for planning scheme 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 ii. Act as a land-use and design review panel for making frameworks. 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 annually to Parliament on the implementation of the c. protection of the coastal public land footprint 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 Establish a statutory requirement to develop and • marine and coastal environmental science 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. 8 Great 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 • travel, tourism, hospitality and leisure skill-based board, to manage the coastal Crown land and Recommendation 21 marine parks along the Great Ocean Road. • finance and investment facilitation • 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 Coast and Parks with the directions of the strategic of the Great Ocean Road Coast and Parks, to: • Eastern Maar and Wadawurrung values framework plan. • protect and enhance the ecological and landscape • heritage values management. integrity of the coastal parks and marine areas Recommendation 22 along the Great Ocean Road Recommendation 14 • 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 identify visitation management options. • prepare for, and manage, the impacts of natural 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 management of their traditional lands. resources (including Crown land) 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 between towns, along the Great Ocean Road.. • ensure funds raised (from caravan parks and 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

9 Protecting our iconic coast and parks Teddy’s Lookout Teddy’s © surfcoastimages Source:

10 Great Ocean Road Final Report Introduction

11 Protecting 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 . 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 2 War 1 and a significant part of Victoria’s home to 24,000 residents 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 12 It is just 90 minutes’ drive from , 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

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 City Deal, with funds going to build the new Convention Centre, progress Ocean Road along the Great Travelling Society Lorne Historical Source: 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. 13 Regional 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 Ocean Road, to ensure a planned, integrated economically prosperous approach to this iconic destination.”

5. Colac Otway Shire media release 24 November 2016 Cadel Evans Great Ocean Road Race 2017 Race Ocean Road Great Cadel Evans Coast Shire Surf Source:

14 Great 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 Batchelor, Keith Baillie, Jamie Lowe, Wayne arrangements for the Great Ocean Eccles (Manager Geelong •• The CEOs of the five Local Kayler-Thomson, Diane James, Paul Davis, Office) and Mr Paul Davis Road and its environs and recommend Government Authorities along the Elaine Carbines, Tony McGann, Jason 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 management, who understand the –– Colac Otway Shire (Mr Peter landscape setting key issues relating to the governance Brown/Mr Robert Dobrzynski/Mr ii. improve the visitor experience of the Great Ocean Road: Tony McGann) –– Corangamite Shire (Mr Andrew iii. provide greater certainty in land- –– Ms Diane James, AM (former Mason) use planning and attract investment Chair of the Victorian Coastal 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 –– Mr Wayne Kayler-Thomson for Planning, Minister for Regional 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.

15 Protecting 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 consultation with the three coordinating experience of cooperative efforts during after face-to face conversions with more Ministers, decided to compliment the the Wye River Bushfire Reconstruction than 780 people at a variety of locations collaborative approach of the Taskforce process was also reviewed. (Melbourne, Torquay, Anglesea, Lorne, Wye investigations, with the independence River, , the Twelve Apostles, Port The Taskforce investigations also included: of Co-Chair recommendations. These Campbell, Warrnambool and ) decisions reflected the terms of •• travelling along the Great Ocean and more than 570 written responses. reference for the Taskforce and the Road with briefings by the Traditional Owners and officers from key forward-looking nature of the review. 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 examples that illustrated systemic issues. •• holding issues and opportunities examining the current governance This analysis identified critical issues and identification workshops with key arrangements for the Great Ocean informed the recommended changes to stakeholder representatives 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

1. INTRODUCTION 1. An initial issues paper, Governance of the problems or complaints, including those Reef (Australia), Milford Sound (New 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

16 Great 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 of vehicles travelling along the Great Dec 2017 – Apr 2018 also provided a valuable and insightful Ocean Road). Investigations 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 recommendations in this report. The Mar 2018 detail with the issues associated with Release of Governance of the Taskforce also undertook a strategic the management of Crown land. Those 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 Land Final Report by the Victorian during the framing of recommendations. Environment Assessment Council A detailed cost benefit analysis of (1 July 2017) the recommendations has not been May 2018 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 INTRODUCTION 1. and Coastal Management, by the Taskforce deliberations Department of Environment, Land, Water and Planning that accompanies the Marine and Coastal Act 2018. Aug 2018 Co-Chairs Report to government

17 Protecting our iconic coast and parks Summer day at Kennett River day at Kennett Summer © surfcoastimages Source:

18 Great Ocean Road Final Report Community Community engagement

19 Protecting 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, , 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 and holiday home owners. A mandarin- stakeholder organisations, community the Great Ocean Road, the consultation speaking park ranger helped capture the groups and individuals.

>780 57 516

2. COMMUNITY ENGAGEMENT face to face submissions surveys conversations

20 Great 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:

• 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 arrangements is desired. 2. COMMUNITY ENGAGEMENT • More emphasis is needed in the final eportr on environmental protection, road safety and climate change implications.

21 Protecting 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 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 Each community is unique and has between townships was highlighted as a key issue requiring action. and creating inequities between local 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 Transport and traffic management were management arrangements needs to identity and issues. The uniqueness, identified as the aspects people most happen as quickly as possible. or feel or vibe, of each township was 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 “The landscape is iconic for Australia, and identified the need for the widening of another key theme. The history and heritage the balance between the native flora and roads, additional pull-over lanes, speed of the region is highly prized and frequently fauna on one side and the rugged ocean limits, verges, traffic management, driver described as important to the identity of the scenery on the other is breathtaking education, traffic lights, and shared-user Great Ocean Road and its surrounds. natural environment” paths for cycling and walking. The need to better manage congestion on peak Protection of townships from Feedback overwhelmingly identified the days (with increased numbers of tourist 2. COMMUNITY ENGAGEMENT overdevelopment was also a strong theme nature experience and the environment buses and vehicles) was highlighted in feedback. Residential development as the elements most loved about the and improved public transport options was frequently mentioned as having a Great Ocean Road region. The vast, such as more local buses and trains negative impact on township size. unspoiled landscapes and seascapes are were suggested. The inability to take

22 Great 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 protected rugged place road pristine fauna feel history peaceful busy bush general landscape water walk close natural like people flora air coast great clean free wildlife small vista nice lots beautiful ocean quiet views drive beauty great road weather coastline groups view roads beachscenery scenic see care sea look peace cliffs things forest apostles unspoiled beaches good driving landscapes towns walking stunning bushland nature space 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 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 environmental protection, road Another concern was the responsibility for be placed on road safety and the 2. COMMUNITY ENGAGEMENT 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.

23 There 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 about the time needed to establish A strong theme emerging from feedback any new body, and the need for 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 Community consultation, consultation, Community Apostles Twelve

24 Great 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 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.’ Many respondents felt that future- – Corangamite Shire Council 2. COMMUNITY ENGAGEMENT 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 25 Protecting our iconic coast and parks The Apostles at sunset © surfcoastimages Source:

26 Great Ocean Road Final Report Key findings Key

27 Protecting 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 (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. KEY FINDINGS 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.

28 Couple photographing the Twelve Apostles Source: Visit Victoria Social value •• Bells Beach, an internationally A holistic approach to protect renowned surfing location which its benefits The Great Ocean Road is part of is strongly associated with the Australia’s pioneering history and development of surfing and the In 2011, the Great Ocean Road and its Victoria’s culture. surf industry in Australia, and has environs was placed on the National considerable importance for the large Heritage list for its outstanding and The commemorative road construction Australian surfing community iconic coastal journey, as well as its project combined substantial community nationally significant natural, heritage fundraising efforts with employment for •• the many beaches along the Great and indigenous values (including its returned servicemen. The project was Ocean Road that are easily accessed significant landscape values, biodiversity, planned to open up the dramatic coastal from Melbourne and Geelong, along geological and geomorphological values scenery for tourists, and in doing so, to with the many camping grounds and and Cretaceous dinosaur fossil sites). create one of the world’s greatest ocean caravan parks that are a popular, The listed area was also included in road drives as a permanent memorial to affordable, family holiday destinations the Victorian Heritage Register for its the soldiers who served in World War 1. historical, archaeological aesthetic and •• treks in the Otways, the Great Ocean social significance. Places along the Great Ocean Road also Walk, waterfalls, lush forests, cliff top have significant social value such as: walks, heritage and coastal trails provide nature immersion experiences •• Shipwreck Coast, between Peterborough to •• international events including the Falls 3. KEY FINDINGS 3. (including Port Campbell National Festival, Lorne Pier to Pub ocean swim Park) where the accessibility of historic race, Cadel Evans Great Ocean Road shipwrecks help deepen the visitor Race and the Rip Curl Surfing Pro. experience by interpreting themes of immigration, shipping and trade

29 Protecting our iconic coast and parks

Due to the national significance of the framework to review the effectiveness of One integrated and Great Ocean Road, its landscapes and governance arrangements across five key seascapes, and the contribution of its elements of landscape management for living entity visitor economy to the state, the Co- the Great Ocean Road, and to guide the The iconic landscapes along the Chairs concluded it warrants special, development of recommended reforms: Great Ocean Road have outstanding purpose-built governance and decision- •• Crown land management (to protect natural, heritage and cultural values making arrangements. the outstanding natural, heritage and and are to be treated as the one The primary objective of those cultural values) integrated and living natural entity governance arrangements is to protect •• Traditional Owner involvement in for the protection and appreciation the ecological and landscape integrity of caring for Country of future generations. the whole of the Great Ocean Road and •• Land-use and development planning The proposition asserts that the its landscapes and seascapes. (interface with private investment country through which the Great Effectively, the Co-Chairs would like to and the community interest) Ocean Road traverses is to be see the Great Ocean Road, its landscapes •• Visitation management (for the acknowledged, respected and cared and its seascapes managed as the one length of the Great Ocean Road) for as the one integrated and living integrated and living natural entity, and entitiy and not as separate elements. •• State construction projects and not as a sum of parts. This holistic approach blends the infrastructure investment. wisdom of the Traditional Owners With this concept in mind, the Co-Chairs 10 in ‘Caring for Country’ with a developed the following analytical contemporary approach to protect natural, heritage and cultural values and distinctive landscapes.

Figure 4: Analytical framework for the review

Overarching, coordinative, integrative, holistic (including monitoring and reporting)

State construction 3. KEY FINDINGS 3. Crown land Traditional Land-use and Visitation projects and i management E Owner Inclusion n development management t a e s infrastructure s g r t t n fa n e u c e w m rn rr e m h a l M u w st o te rin sta a aw ith nve le ou e and coa ar and Wad private i of touring r

10. The term ‘caring for Country’ refers to the land and sea management practices by the Traditional Owners. 30 Great Ocean Road Final Report

Crown land management is fragmented and inefficient

Crown land management along the Great Ocean Road is highly fragmented

The coastline of the Great Ocean Road boasts a linear network Great Ocean Road Coast Committee, Otway Coastal Committee, of marine and coastal parklands and open spaces of state Surf Coast Shire, Colac-Otway Shire, Corangamite Shire, and and national significance. Large areas along the coast have Moyne Shire, Peterborough Coastal Reserve Committee of been declared national parks, giving them the highest level of Management, Port Campbell Recreation Reserve Committee, protection and management by Parks Victoria. and Princetown Recreation Reserve Committee). In a number of instances (particularly in coastal towns), operational The management of other coastal Crown land along the Great management is further fragmented through leases or licenses Ocean Road has been delegated to a large number of different of small parcels of land to community and government entities (the main ones being Parks Victoria, the department, the organisations.

Fairhaven Surf Lifesaving Cub

31 Protecting our iconic coast and parks

Figure 5: Fragmented coast and parklands management along the Great Ocean Road

Weerite Modewarre u Lake Purrumbete Mount E m Cree Cororooke GREATER Purnim k s Pomborneit iver in Ba R GEELONG k rw n p r Lake Colac o o e wy H iv sH R e Torquay c PrincesHw i n y r Cobden P Wensleydale Colac Jan Juc Pirron Yallock SURF COAST MOYNE Allansford Deans Marsh Anglesea Point Addis Point Danger Glenfyne Marine Marine s Sanctuary urdie National Park C er Barongarook Riv Aireys Fairhaven Scotts Creek Inlet

Nullawarre Simpson Surf Coast WARRNAMBOOL Gellibr and Shire Council River Forrest G Gellibrand re Lorne a tO CORANGAMITE c berland e Upper Gellibrand Cum a Ba er n r Riv W won River Surf Coast R e d st h Melbourne DELWP COLAC Branc Shire Council Kennedys Creek OTWAY Peterborough Port Campbell Geelong Wye River Beech Forest Parks Victoria PortlandWarrnambool Aire Kennett River River DELWP Moyne Shire Council Melbourne Princetown Skenes Creek Great Ocean Road Great Ocean Road Gellibrand Lower Coast Committee Coast Committee Peterborough Geelong Coastal Reserve Twelve Apostles Marine National Park Apollo Bay Regional Centre Parks PortlandWarrnambool Victoria Hordern Vale Marengo Town Parks Parks Victoria Victoria Local Government AreaOtway Coast Great Ocean Road Committee Corangamite Watercourse Shire Council Princetown RecreationMelbourne Water body Reserve COM Elliot River - Addis Bay Regional Centre Coastal Reserve The Arches Geelong ParksTown Marine Sanctuary OtwayLocal Coast Council VictoriaLocal Government Area Committee Port CampbellPortland RecreationWarrnambool Department of Environment, Great Ocean Road Colac-Otway Reserve COM Shire Council Land, Water and Planning 0 10 20 Watercourse Elliot River - Addis Bay Great Ocean Road Coast Committee Coastal Reserve Water body Otway Coast Committee Kilometres Parks Victoria Committee of Management Regional Centre Local Council Melbourne Private / Freehold Town Department of Environment, Land, Water and Planning Geelong Local Government Area Marine Park and Sanctuary Manager Great Ocean Road Coast Committee Great Ocean Road Parks Victoria Otway Coast Committee PortlandWarrnambool Watercourse Parks Victoria Water body Committee of Management 32 Private / Freehold Local Council Marine Park and Sanctuary Manager Department of Environment, Parks Victoria Regional Centre Land, Water and Planning Town Great Ocean Road Coast Committee Local Government Area Otway Coast Committee Great Ocean Road Parks Victoria Watercourse Committee of Management Water body Private / Freehold Marine Park and Sanctuary Manager Local Council Parks Victoria Department of Environment, Land, Water and Planning Great Ocean Road Coast Committee Otway Coast Committee Parks Victoria Committee of Management Private / Freehold Marine Park and Sanctuary Manager Parks Victoria Great Ocean Road Final Report

Aire River

The management of contiguous coastal The fragmentation of responsibility public open spaces and facilities, the land is fragmented even further, as for management of contiguous efficient maintenance and delivery of illustrated in figure5 . coastal Crown land adds unnecessary the municipal-like services (such as complexity and inefficiencies, with gardening, toilets and rubbish collection There are also instances where anomalies inevitable variations in performance for foreshores in coastal towns), and the from historical public land administration (such as maintenance standards) and management of the pressures from the arrangements results in the one public limits responsiveness to changing increasing numbers of visitors and forces space having multiple land managers (such requirements. of nature (in particular coastal inundation as the foreshore in coastal towns). This and erosion, but also land instability overlap resulted in instances of different There is an urgent need for the and subsidence, cliff regression and contractors and timing for maintenance Victorian Government to take a more undercutting and acid sulfate soils). or cleaning regimes such as gardening/ cohesive and strategic approach to mowing/toilets (and “mow lines”11). coastal land and marine environment management, the maintenance of quality 3. KEY FINDINGS 3.

11. Mow lines are visible lines in the grassed public open space created when part of the area is mowed up to the boundary of the area maintained by another organisation.

33 Protecting our iconic coast and parks

Inadequate attention to, and investment in, protecting coastal assets (natural and built)

In many instances, the coastal (Crown Key issues identified by VAGO included: The cost of maintaining and protecting land) environments adjacent to the •• fragmented and overly complex coastal assets rests within the operational Great Ocean Road protect it from the coastal management and planning budgets of the responsible organisations forces of nature (such as the pressures arrangements for that area. Under current arrangements, of wave action and storm surges from committees of management are self-funded, •• the skills and capacities of coastal the Southern Ocean which drive coastal with funding supplemented by grants managers not being well aligned with erosion and inundation). programs. Some coastal land managers responsibilities and asset risks generate significant revenue (from caravan Managing and, where needed, safeguarding •• a lack of clarity around roles park operations or leases) whilst adjoining these protective structures is vitally and responsibilities for asset coastal reserves may generate relatively important for the Great Ocean Road (and management and maintenance little revenue for investment in coastal land utility infrastructure in road easements) – •• a lack of clarity and transparency and infrastructure protection. and will become even more important due around coastal funding and to the impacts of climate change. expenditure. The Co-Chairs’ firm view is that the level of investment in protection of coastal The Victorian Auditor General’s Office Coastal asset management practices assets should not be determined by the (VAGO) review of coastal asset protection were also found to be inadequate. level of operating revenue of the relevant released 29 March 2018, Protecting committee of management. Victoria’s Coastal Assets found that: VAGO’s finding of a “fix on fail” approach to coastal asset management was The Department of Environment, “Overall natural and built assets echoed in feedback the Co-Chairs Land, Water and Planning has on Victoria’s coastline are not received from the community. Community acknowledged the issue and developed being adequately protected. The members also commented on the the Strengthening Victoria’s Marine and audited agencies’ ability to do this closure of access as the primary risk Coastal Management (a transition plan strategically and cost – effectively management strategy when asset accompanying the introduction of the is limited by weaknesses in their condition (such as stairway access to the Marine and Coastal Act 2018). coastal asset management practices beach) posed a public risk. and a number of governance and The Co-Chairs commend the acceptance management barriers.” The issue was further highlighted at of all VAGO recommendations by Apollo Bay when coastal erosion during agencies and their commitment to “The strategic and systematic the storms on the weekend of 16-17 June improve the management of coastal implementation of actions to respond 2018 caused significant damage to the assets. However, there has been a long- to climate change has been limited or foreshore (refer case study 1) and brought standing disconnect between policy

3. KEY FINDINGS 3. lacking” the coastline to within five metres of the and implementation due to the lack of pavement of the Great Ocean Road. appropriate funding, and the challenges associated with the fragmented Crown land management delegations.

34 Great Ocean Road Final Report

Case study 1: Apollo Bay Foreshore Erosion Figure 6: Coastal erosion of car park, Apollo Bay

The coastal sandunes that protect the Great Ocean Road from the Southern Ocean in Apollo Bay from Marengo to Skenes Creek are susceptible to erosion during coastal storms. In the 1990’s camping was stopped at Marengo due to foreshore instability.

During the recent 2018 winter storms, coastal erosion undermined the coastal trail and a beach car park in Apollo Bay. The dune protection of the Great Ocean Road is now less than 5 metres in places.

The Otway Coast Committee (OCC) is the appointed manager of the Apollo Bay foreshore (as part of 28.5 km of coastal Crown land it manages between Marengo and Separation Creek). Funding of its operations is reliant on the limited fees it raises from leases and camping grounds. It does not have the funds to undertake temporary measures let alone a more permanent solution.

DELWP has contributed funding for the renourishment of the sand along the coastline of Apollo Bay. This will protect the Great Ocean Road in the immediate future. Figure 7: Sand renourishment along the foreshore in Apollo Bay

Colac Otway Shire contributes to the sand renourishment through dredging operations in the harbour. VicRoads has not previously contributed funding towards protection works in the past as the erosion is occurring outside the road reservation.

The community is frustrated at the ‘fix on fail’ approach and is concerned that a breach of the sandune and loss of sections of the Great Ocean Road will occur before the problem is addressed and a longer term solution established.

35 Protecting our iconic coast and parks

The environmental condition of requirements (information required for Land administration and on-ground coastal and marine environments applications, application processes and management is further complicated by needs monitoring timelines, and likely application outcomes the inadequate Crown land information including conditions on permits). systems. Currently, public land Access to long-term data and knowledge information is held on multiple databases on the condition of the natural marine The department’s transition plan that contain data gaps and inaccurate and coastal environments is required to accompanying the new Marine and (and sometimes conflicting) information. make the best use of available funding, Coastal Act 2018 proposes to develop There is also the issue of variable and to ensure any actions are delivering policy guidance and regulations (taking implementation of government accepted the expected environmental outcomes. a risk-based approach) to aid in the public land use recommendations. In administration of the requirements of the addition, agreements (such as leases and Objective and accurate information on legislation (including coastal consents). licences) are not stored centrally. the state of the natural assets along This approach will go some way towards the Great Ocean Road is important, addressing the issues, along with updated Identifying who is responsible for the and ought to be complimented by an coastal management plans initiated administration of a parcel of Crown land, evaluation of the direct and indirect by both the Great Ocean Road Coast and identifying government accepted benefits that all Victorians derive from Committee and Otway Coast Committee. public land use recommendations that the ecoservices provided by the marine haven’t been implemented, can contribute and coastal parks along the Great There are considerable inefficiencies to delays in permit applications for land Ocean Road. This would complement the and a red-tape burden in public land development projects. Stakeholders requirements of the Marine and Coastal administration advised that the current arrangements Act 2018 for environmental reporting. impact significantly on the timelines, “Modern land administration relies resourcing and efficiency of delivery of There are conflicts and tensions on accurate, up to date mapping State investment commitments (such as associated with coastal consent and database systems to support for road construction and visitor facilities permit processes planning decision making. There are projects). few areas that are more critical to The use and development of the coastal effective public land management.” 12 The Co-Chairs commend the reserves require the consent of the department’s establishment of the Crown Minister (or their delegate). Eleven organisations manage almost Land Information Improvement Project, 170,000 hectares of public land along the which will combine all the sources of Key stakeholders and members of the Great Ocean Road, with considerable information into one database. Further community have raised the issue of fragmentation of the responsibilities for work is required, however, to address notable tensions/conflicts between the management of contiguous coastal conflicting information, gaps or the the views of lease holders, committees public land. regular instances of anomalous, legacy, 3. KEY FINDINGS 3. of management and the department administrative arrangements. on coastal consent applications

12. State-wide Assessment of Public Land Final Report’ by the Victorian Environment Assessment Council (1 July 2017).

36 Great Ocean Road Final Report

Case study 2: Duplication of municipal-like services at Apollo Bay foreshore

The foreshore of Apollo Bay (on the ocean side of the • Colac-Otway Shire is responsible for public open space Great Ocean Road) is the principle public open space management and maintenance on the inland side of the for the local community and visitors alike. It has three Great Ocean Road and provides municipal-like services responsible public entities. including toilets cleaning and maintenance, rubbish collection, gardening, events management services. • Otway Coast Committee is responsible for the coastal It is also responsible for a portion of the coastal reserves and majority of the coastal foreshore area foreshore with a lease for a land area that includes the on the ocean side of the Great Ocean Road. It delivers information centre. municipal-like services including toilet cleaning and maintenance, rubbish collection, gardening and events • VicRoads is responsible for the Great Ocean Road management services. pavement and easement which extends into the foreshore area. Some activities require permits from both VicRoads and the Otway Coast Committee

Figure 8: Two toilets side by side at Apollo Bay foreshore. The toilet block on the left is part of the information centre with services and maintenance provided by Colac-Otway Shire on a parcel of foreshore land for which it has a licence. The blue toilet block on the right- hand side is part of the Otway Coast Committee’s toilet facilities that they service and maintain. 3. KEY FINDINGS 3.

37 Partnerships with Traditional Owners present an exciting opportunity

Significant cultural (tangible and intangible) values mapping required

The Great Ocean Road passes through understand the importance of the the traditional lands of the Eastern Aboriginal cultural heritage in the local Maar and Wadawurrung People. The area. region is of high cultural, ecological and economic importance to their Aboriginal coastal sites, such as shell communities. There are sacred sites and middens, are at risk of damage from resources, values and stories associated coastal erosion, while hinterland sites with places along the coast and across are susceptible to fires. There is a need the region – as well as language and to map the Traditional Owners’ cultural ceremonial practices that have been sites and values so that they can be handed down by Ancestors and Elders. recognised, promoted and protected. Whilst there are some commonalities The community is increasingly interested between the approach of the two groups, in understanding the cultural values of there are also differences (and limited the region with increasing demand for overlap in language) that needs to be cultural tours on Country and interpretive acknowledged. information. The Eastern Maar and The bulk of the land along the Great Wadawurrung are also increasingly Ocean Road is undeveloped and there are engaged to provide ceremonial services many places with tangible and intangible (such as Welcome to Country). Aboriginal values that are not mapped As a consequence, there is a need to and registered (as this process is largely identify, map, register, protect and driven by the regulatory requirements promote places with cultural values associated with land development under (tangible and intangible) in the the Aboriginal Heritage Act 2006). There landscapes and seascapes along the is a corresponding lack of interpretive Great Ocean Road, including Traditional information to allow visitors to better place names. Erskine Falls Erskine Visit Victoria Source:

38 Great Ocean Road Final Report

Moyjil - Point Ritchie Source: City of Warrnambool

Traditional Owner involvement in natural resources management is increasing

The Eastern Maar and Wadawurrung, had limited input into the development about the use and management of along with Aboriginal Victoria, are of policies or local management of the nominated Crown land along the Great involved in land-use planning processes 170,000 hectares of Crown land along the Ocean Road. where regulatory compliance (and Great Ocean Road. cultural heritage management plans) The Co-Chairs welcome the discussion is required. They are also involved in The Australian legal system recognises and look forward to weaving the resultant natural resources management (such the rights and interests of the Traditional legal requirements into future governance as priorities for environmental flows and Owners of Country and for these to co- arrangements. It should be noted that the broader catchment management/caring exist with the Crown land management current fragmented spatial management for Country). The Eastern Maar have also system. A Recognition and Settlement of the Crown land along the Great been consulted in recent times during Agreement (RSA) under the Traditional Ocean Road will add to the difficulty of a coastal planning exercises, such as for Owner Settlement Act 2010 is currently cohesive approach to jointly managing the Shipwreck Coast and the Belfast under negotiation between the Victorian public land with Traditional Owners when 13 Coastal Masterplan. To-date however, the Government and Eastern Maar . This is the legal direction to do so is established. Eastern Maar and Wadawurrung have likely to result in associated agreements 3. KEY FINDINGS 3.

13. The Victorian Government and the Eastern Maar have commenced negotiations to enter into a Recognition and Settlement Agreement (RSA) under the Traditional Owner Settlement Act 2010 for land along the Great Ocean Road (for a map of the area under discussion and more information refer www.justice.vic.gov.au/home/your+rights/native+title/ proposed+eastern+maar+recognition+and+settlement+agreement ). That agreement will recognise the Traditional Owner rights of the Eastern Maar and is likely to include associated agreements about the use and management of nominated public land.

39 Protecting our iconic coast and parks

Land-use planning lacks a clear strategic direction

Planning hierarchy connects state, obtaining a permit under a planning the 2013 VicRoads Great Ocean Road regions and local priorities scheme, settling disputes, enforcing Management Strategy, the Strategic compliance with planning schemes, Masterplan for the Great Ocean Region The Planning and Environment Act 1987 and other administrative procedures. Visitor Economy: 2015- 2025, and individual sets out the framework for planning the It also provides for the intervention of plans by local government authorities and use, development and protection of land the Minister for Planning in planning- responsible public agencies. in Victoria, including clauses to protect approval processes. distinctive areas and landscapes. The 2004 Great Ocean Road Region It is worth noting too, that the State Planning Strategy took an integrated view of the The framework outlines a planning Policy Framework in the Victoria Planning Great Ocean Road and its landscapes. The hierarchy of State, regional and local Provisions includes a dedicated section for Strategy included an implementation plan policies that enable decisions about protecting coastal areas, and a dedicated that nominated actions for the various the use and development of land. It section for sustainable development of the responsible entities, but did not have an provides for a single instrument of Great Ocean Road region. integrated infrastructure plan for the planning control for each municipality, region. In addition, no funding was attached

3. KEY FINDINGS 3. the planning scheme, which sets out the Limited strategic direction to the Strategy, and no single entity was way land may be used or developed. accountable for the implementation of the The Great Ocean Road already has a It sets out procedures for preparing Strategy. An Implementation committee number of stand-alone plans. Those plans and amending the Victorian Planning was formed but disbanded after a few Provisions and planning schemes, include the Shipwreck Coast Masterplan,

40 Great Ocean Road Final Report

Apollo Bay from the Otway foothills Source: © surfcoastimages

years, with the Strategy’s implementation the significant areas of landscape and, consequently need to be addressed by carried out by agencies on an ad hoc basis environmental significance, bushfire proponents in separate processes. as resources allowed. management requirements, natural constraints (such as coastal inundation Councils report a lack of resources/ In the absence of a shared vision and and erosion, riverine flooding, land capacity to process large and complex agreed strategic framework plan for instability and subsidence, coastal planning applications. Occasionally, future direction on land-uses across acid-sulphate soils) and unmapped decision-making prioritises the local the region, and without guidelines on Traditional Owner values. The complexity perspective over the broader, whole- appropriate design standards, scale and difficulty of land development and of-Victoria, community interest. The and locations, land developers and construction projects in such a unique planning framework is inconsistently local communities will continue to have landscape appears to be regularly applied and there is uncertainty around different views on what constitutes underestimated with many competing assessment processes, and decision- appropriate development. interests to balance. making considerations.

An exceptionally sensitive and The multitude of agencies makes a A number of the local land managers have complex landscape for land joined-up response to land development requested a regional or state-led planning 3. KEY FINDINGS 3. development proposals proposals difficult. Some environmental, approvals mechanism that provides more coastal, heritage, Commonwealth, fire certainty, establishes ground rules, and The iconic coastal and rural landscapes and Crown land approvals are outside identifies clear information requirements along the Great Ocean Road have many the operation of planning schemes – and up front to fast-track and facilitate constraints on land development due to significant regional projects.

41 The visitor economy is important to the future prosperity of the region

The visitor economy is an important Visitor numbers are steadily growing industry for the Great Ocean Road The vast majority of visitors to the Great region Ocean Road region are Victorians. Visitation is a major economic driver for There has been a steady growth in the the region, and is important to Victoria’s number of domestic overnight trips visitor economy. (increasing by an average of 11 per cent In 2016-2017 tourism was estimated to per annum over the last five years) and be worth $994 million to the region’s a steady growth in international visitors economy (in direct and indirect Gross (increasing by an average of 22 percent Regional Product), representing 15.2% of per annum over the last five years). There the region’s economy. In the year ending is a much higher rate of growth in day June 2017 its 5.8 million visitors spent $1.3 trips, compared to overnight stays. billion supporting 11,200 jobs in the region.

Figure 9: The bulk of trips to the Great Ocean Road Region are by Victorians (millions, year ending June 2017)

Origin Day trips Overnight Total visitors

Victorian 2.67 1.75 4.42

Interstate 0.15 0.32 0.47

International 0.71 0.22 0.93

Total 3.53 2.29 5.82

Source: International Visitor Survey (IVS) and National Visitor Survey (NVS), Tourism Research Australia (supplied by Deloitte Access Economics). Note Interstate day trips are based on a small sample size. On holiday

42 Great Ocean Road Final Report

The number of visitors will continue to grow, even if we do nothing

Asia’s middle class is projected to grow The natural beauty of the Twelve Apostles the Great Ocean Road is more accessible to more than 3 billion people by 2030; and Great Ocean Road coastline and its than ever before. the United States’ long recovery from the accessibility are the key micro drivers of Global Financial Crisis is continuing; and visitation to the region. The proximity of The challenge for the region is to find the Australian dollar – having peaked in Torquay to Melbourne makes the region ways to manage the visitor congestion 2011 – is starting to depreciate. accessible for both day trips and longer and to spread the visitor load across the overnight and multiday stays. day, seasons and locations. These factors create a more attractive economic environment for international With the opening of the international travel to Australia and increased terminal at Avalon Airport in December domestic travel within Australia. 2018 – just 50 kilometres from Torquay –

Figure 10: Domestic overnight and international visitors to the Great Ocean Road Region has been steadily increasing

6 M

5 M

4 M

3 M

2 M

Total trips for visitors trips for Total 1 M

0 05-06 06-07 07-08 08-09 00-10 10-11 11-12 12-13 13-14 14-15 15-16 16-17

Domestic day trips Domestic overnight trips International day trips KEY FINDINGS 3.

Source: International Visitor Survey (IVS) and National Visitor Survey (NVS), Tourism Research Australia (supplied by Deloitte Access Economics).

43 Drivers of Tourism The visitor experience could be improved

Macro factors influence domestic and global trends in tourism Visitor amenities and the touring route Many visitors are satisfied with the experience are inadequate, falling well experience of seeing the Great Ocean Economic factors: short of expectations. There is a lack of Road from the comfort of a car or bus Foreign exchange rates: A weaker Australian dollar makes Australia complementary visitor experiences and seat – travelling to and from the Twelve more affordable for international visitors and international travel more diverse supporting accommodation that Apostles – but these trips create few expensive for Australians, encouraging domestic travel. would encourage tourists to do more than opportunities to fully experience the Economic prosperity: Higher individual wealth (GDP per capita), just make a day trip to the Twelve Apostles. region and meet local communities. particularly the growing middle class in China and other South East Asian countries, and an increase in disposable income may promote tourism, both international and domestic. Geopolitical stability: Safety concerns including terrorism and political unrest may Figure 11: The growth in visitors to the Great Ocean Road region is projected to steadily discourage international travel entirely, but may equally encourage continue over the next ten years travel to destinations perceived to be unaffected (or relatively less affected) by these concerns. 10 M

9 M Micro factors are site-specific 8 M

Site attractiveness: 7 M The attraction itself, including its natural beauty, historical or man-made 6 m features and how these compare to (and compete with) other similar sites is a key driver of both domestic and international visitation to a site. 5 M

Site accessibility: 4 M

The more accessible a site, the more attractive it will be to visitors, all 3 M else equal. 2 M • A site that is close to a major capital city, with numerous connecting flights, will be more attractive to international and interstate visitors. 1 M • The mode and cost of travel to the site, including any risks posed along the journey, will impact the attractiveness of the site. Safe, 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 2023-24 2024-25 2025-26 2026-27 well maintained roads, will attract greater vehicle volume than Domestic day trips Domestic overnight trips International day trips poorly maintained and dangerous roads. Accommodation provision: International overnight trips Overnight and multiday stays are in part determined by availability of accommodation. A lack of accommodation will, all else equal, deter stays for more than a day trip. Source: International Visitor Survey (IVS) and National Visitor Survey (NVS), Tourism Research Australia (supplied by Deloitte Access Economics).

44 Great Ocean Road Final Report

The challenge is to increase the local sector. It also constrains the ability of poor visitor experience or the cumulative benefit from visitors the region to attract investment for new impacts of visitors on communities along tourism experiences – creating a catch-22 the Great Ocean Road. Tourism is a major contributor to the situation where the region is unable to Great Ocean Road regional economy. benefit from longer stays and unable Local communities have many first-hand However, domestic and international to attract the investment necessary to examples of poor visitor experiences, visitors spend less money than the encourage longer stays. such as congestion (with visitors average visitor to Victoria. (Conversely, travelling three hours only to find the domestic day trip visitors spend Part of the problem is the lack of coordinative car park shut), the lack of marginally more in the region compared accountability. Currently, no single agency information about experiences on offer to the rest of Victoria.) has responsibility for managing the visitor along the Great Ocean Road and the experience for the full length of the touring locations of toilets and food/refreshments, Almost two-thirds of trips along the Great route, let alone the provision of basic facilities the lack of interpretive information and Ocean Road are day trips, with the tourism and amenities (such as parking and toilets) poor mobile phone coverage. benefits flowing to tour operators and at regular intervals. accommodation in Melbourne rather than Local people had practical ideas about expenditure in local communities. There is no forum with status for how to improve the visitor experience, but local community input didn’t know where to go or who to talk The challenge of increasing visitors’ length to about their ideas. Often, local people of stay and level of expenditure along the Community support for tourism in who tried to raise their concerns or ideas Great Ocean Road has been considered popular destinations along the Great found themselves passed from agency to on many occasions, and acknowledged Ocean Road is vital, and depends on agency, with no-one taking responsibility. in several strategies, including in the strong partnerships with the local 2004 Great Ocean Road Regional community, local businesses, and Likewise, there are currently no forums Strategy, Shipwreck Coast Master Plan community groups. for local communities to raise concerns and the Great Ocean Road Region Visitor about the impacts of increasing visitation Economy: 2015-2025. To build strong partnerships there is a or land development planning permit need for ongoing communication and processes (such as the lack of affordable Ultimately, low visitor yield in the region informed discussion. Currently though, housing, road safety and the cumulative limits the ability for communities to there are no forums for local communities impact of housing development). benefit from the growth in the tourism to voice concerns about issues such as the

Figure 12: Great Ocean Road Region visitor spend, compared to visitors to Victoria

Total spend per trip/nights Domestic day Domestic overnight International overnight 3. KEY FINDINGS 3. Visitors to Great Ocean Road $103.00 $146.72 $99.09

Visitors to Victoria $101.97 $194.10 $115.54

Source: Great Ocean Road Regional Tourism, 2018; Tourism Research Australia, 2018; Deloitte Access Economics 2018.

45 Protecting our iconic coast and parks

Portfolio based government investments

Lack of strategic regional infrastructure planning

Planning for tourism developments is a understood, and the competing interests clear direction to potential tourism complex activity that requires strategic and objectives of development proposals development opportunities. Likewise, the planning, collaboration and coordination must be balanced. lack of information from state agencies by local governments, agencies and and councils about the strategic direction communities. Currently, councils do not have adequate of the Great Ocean Road discourages information about the future direction of the level of private and public investment To achieve the best outcomes, the regional regional infrastructure strategies and/ required to deliver desperately needed infrastructure needs and development or regional constraints. Consequently, projects. constraints of the region must be fully councils are unable to provide

Beach patrol. Surf Lifesaving Victoria

46 Great Ocean Road Final Report

No centralised knowledge Despite the willingness and collaborative Considerable investment is likely to be management approach across the many responsible required to protect the Great Ocean public entities, none are accountable Road from the forces of nature (coastal The Great Ocean Road travels through for implementing an integrated whole- erosion, land instability, limestone cliff complex and sensitive landscapes. of-government planning process. In regression) and climate change risks. The Specialist knowledge, data and addition, sorting through the overlapping Commonwealth and State Governments expert technical studies are regularly processes are difficult and time could jointly consider how investment commissioned by the many responsible consuming, and sometimes conflicting in the road network (Great Ocean Road, public entities for planning and works interests need to be elevated to the Princes Highway and north-south along the Great Ocean Road. However, Ministerial level to be resolved. connecting roads)15 can be prioritised in this information is neither catalogued, nor Commonwealth funding programs such stored centrally for sharing with and/or Significant joint State and as the Infrastructure Program over the interrogation by other agencies. Commonwealth projects ahead next 5-10 years.

Inefficient government investment A significant pipeline of government The Great Ocean Road competes delivery investment will be required over the next with projects across the state for 20 years to ensure the Great Ocean funding Currently, government investments Road remains one of the world’s greatest are portfolio based, with agencies and journeys and support the visitor economy. There is no dedicated funding model organisations carrying out separate (including for asset maintenance) for the The Geelong City Deal14 technical studies and community with the Great Ocean Road and its environs in the consultations. Consequently, rather than Commonwealth Government proposes annual budgets of Parks Victoria, VicRoads coordinating and combining planning investment in projects along the Great or other departments. Instead, funding is processes, each stand-alone project goes Ocean Road. An interface, and protocols, ad hoc, with projects prioritised and funded through the same process of developing will need to be developed for effective through the annual budget cycle. solutions, seeking endorsements and and timely delivery of the jointly funded inputs from the multitude of responsible projects. entities, and applying for relevant consents and permits. 3. KEY FINDINGS 3.

14. On 17 January 2018, the Prime Minister and the Acting Premier of Victoria signed a Memorandum of Understanding, committing to work together on a City Deal for Geelong. Areas of focus will include improved transport links in the region, revitalising the Geelong city centre, ensuring the Great Ocean Road reaches its full potential, and supporting innovation and the growth of knowledge industries. 15. A recent numberplate recognition survey along the Great Ocean Road (undertaken by GTA Consultants on Friday 6th to Sunday 8th April) found that the majority of visitor vehicles to the Twelve Apostles – Port Campbell section of the Great Ocean Road travelled to and/or from the area via inland routes.

47 Kayakers at Marengo Reefs Marine Sanctuary Source: Visit Victoria

The critical gap – an absence of overarching coordinative management

The governance of the Great Ocean Road environment and local ecology the everyday operations of individuals and its landscapes is complex. (refer Figure 13). and businesses. In community discussion forums, numerous examples were It involves a multitude of organisations This jigsaw puzzle of organisations provided of members with an issue operating in different geographical are not bound by an overarching being bounced from one agency to locations with different responsibilities, organisational mechanism. Despite the another, with each denying responsibility. stakeholders, priorities and timeframes. best efforts of each of the responsible Government organisations also reported Across the region, there are 11 different organisations, the sheer number of multiple examples of red-tape, with Crown land managers, as well as organisations (each with their own infrastructure projects delayed because 30 responsible organisations with priorities) has shown that voluntary the project team needed to find out which accountabilities covering strategy “joined up” decision making cannot be Crown land manager was responsible development and implementation, sustained over long periods. Inevitably, for a piece of land before they could land-use planning and development, the delivery of local and functional obtain a planning approval or to gain the infrastructure delivery, asset interests is prioritised. endorsement of so many organisations. maintenance, emergency management, investment facilitation, destination The confusion of governance promotion, and the management of the arrangements also delays and frustrates

48 Great Ocean Road Final Report

Figure 13: Organisations with responsibilities in relation to the management of the Great Ocean Road and its landscapes

Current governance of the Great Ocean Road and its landscapes

Policies (and regional plans) Regulation

Australian’s Biodiversity Strategy 2010-2030 Strategic Masterplan for the Great Ocean Region Aboriginal Heritage Regulations 2007 Heritage (various) Regulations G21 Regional Growth Plan 2013 visitor economy 2015-2025 Catchment and Land Protection regulations 2012 National Parks (Tour Operator Licence Fee) Great South Regional Growth Plan Strategy for Australia’s National Reserve System Climate Change Regulation 2011 Regulations 2011 Great Ocean Road Regional Strategy 2004 2009-2030 Conservation, Forests and Land (various) Regulations National Parks Regulation 2013 National Landscapes Program (Commonwealth) Victoria Coastal Strategy 2014 Crown Land (Reserves) (Tour Operator Licence Fee) Native vegetation clearing regulations National Strategy for Ecologically Sustainable Victoria’s Climate Change Framework Regulations 2011 Port Services (local Ports) Regulations 2004 (Vic) Development Western Regional Plan Coastal 2015-2020 Environment Protection (various) Regulations Subdivision (various) Regulations Protecting Victoria’s Environment – Biodiversity 2037 Wetlands Policy of the Commonwealth Government of Flora and Fauna Guarantee (various) Regulations 2011 Victorian Planning Provisions State Environmental Protection Policy Australia 1997 Forests (Fire Protection) Regulations 2014 Water Industry (various) Regulations Forests (various) Regulations Wildlife (various) Regulations

Legislation (Victorian unless otherwise specified) Institutions

Aboriginal and Torres Strait Islander Heritage Land Act 1957 Strategic and policy responsibilities Operational responsibilities Protection Act 1994 (Commonwealth) Local Government Act 1989 Australian Dpt. of Environment and Energy Aboriginal Heritage Act 2006 Major Transport Projects Facilitation Act 2009 Regional Development Victoria Colac Otway Shire Catchment and Land Protection Act 1994 Marine and Coastal Environment Act 2018 Tourism Australia Corangamite Catchment Management Authority Climate Change Act 2017 Marine Safety Act 2010 Transport for Victoria Corangamite Shire Coastal Management Act 1995 National Parks Act 1975 Victorian Dpt. of Economic Development, Jobs, Dpt. of Environment, Land, Water & Planning Conservation, Forests and Lands Act 1987 Native Title Act 1993 (Commonwealth) Transport and Resources Glenelg-Hopkins Catchment Management Authority Crown Land (Reserves) Act 1978 Parks Victoria Act 2018 Victorian Dpt. of Environment, Land, Water & Great Ocean Road Coast Committee Emergency Management Act 1986 (Vic) Planning and Environment Act 1987 Planning Moyne Shire Environment Effects Act 1987 Port Management Act 1995 Victorian Dpt of Justice and Regulation Otway Coastal Committee Environment Protection and Biodiversity Conservation Road Management Act 2004 Visit Victoria Parks Victoria Act 1999 (Commonwealth) Road Safety Act 1986 Regulatory responsibilities Princetown Recreation Reserve Committee Environmental Protection Act 1970 Safety on Public Land Act 2004 Australian Department of Environment and Energy Port Campbell Recreation Reserve Committee Fisheries Act 1995 (Vic) Subdivision Act 1988 Environment Protection Authority Victoria Peterborough Coastal Reserve Committee of Flora and Fauna Guarantee Act 1988 Sustainable Forest (timber) Act 2004 Heritage Victoria Management Forests Act 1958 Traditional Owner Settlement Act 2010 Southern Rural Water Surf Coast Shire Heritage Act 2017 Transport Integration Act 2010 Victorian Aboriginal Heritage Council VicRoads Heritage Rivers Act 1992 Water Act 1989, Water Industry Act 1994 Registered Aboriginal Parties Wannon Water Wildlife Act 1975 Eastern Maar and Wadawurrung Warrnambool City Council

49 Protecting our iconic coast and parks Anglesea Cliffs © surfcoastimages Source:

50 Great Ocean Road Final Report Real risks risks Real

51 Protecting our iconic coast and parks

Real risks

The Co-Chairs identified several state significant risks16 to the Great Ocean Road region that are not being adequately addressed through current, portfolio-based governance arrangements.

These risks are complex by nature, and increasing visitation will create unannounced closure of the Loch Ard and beyond the remit of any single congestion peaks (both time of the day Gorge car park at peak periods; the long responsible entity. They have the potential and seasonally) – destroying the isolated queues for parking to see the Twelve to have large negative impacts on the nature experience that is the very Apostles; the crowds (to the verge of public, local communities, investors, attraction, and causing harm to sensitive claustrophobic) at popular viewing stakeholders and the environment. landscapes along the Great Ocean points, lack of products/service offerings Road. In addition, the lack of basic visitor and state of the toilets along the Road The need to address these risks is one amenities along the touring route (toilets, and at the Twelve Apostles visitor centre. of the key reasons why the Taskforce parking, viewpoints and signs, mobile recommended major institutional change telephone coverage, food and beverage Currently, no single agency has – creating a single point of accountability offerings, interpretive information responsibility for managing the visitor for joined-up decision making and risk and tourism products) detract from experience for the full length of the management from the most executive spectacular views and what should be an touring route, let alone the provision of levels of government down to the project unforgettable experience. basic facilities and amenities (such as delivery level. parking and toilets) at regular intervals. In discussions with local communities Risk of reputational damage along the Great Ocean Road, numerous Risks to the ongoing examples were given of the issues - the touring route is at a associated with a lack of visitor operation and function of tipping point management. Local people expressed the Great Ocean Road concern that poor visitor management The Co-Chairs’ view is that the Great was causing reputational damage to The Great Ocean Road was constructed as Ocean Road, as a key domestic and the Road, citing examples such as: close to the ocean as possible by design, in international tourism destination, is at a the lack of bus parking, toilets and order to create one of the world’s greatest tipping point. In the future, unmanaged viewpoints along the touring route; the ocean drives for travellers. After almost 4. REAL RISKS 4.

16. Definition in the Victorian Government Risk Management Framework - December 2016, published by the Victorian Department of Treasury and Finance. “State significant risks are risks where the potential consequences or impacts of the risk on the community, the Government and the private sector are so large as to be of state significance.”

52 Great Ocean Road Final Report

Figure 14: Landslips and erosion are a major risk along the Great Ocean Road between Lorne and Apollo Bay causing the Road to be closed periodically Paddy’s Path 2016 Paddy’s VicRoads Source:

100 years the intense wave action of the The ongoing viability of the current This issue is not unique to the Great Southern Ocean pressures has taken its toll alignment and form of the Road needs to Ocean Road. Recently the Big Sur in on the Road. Coastal erosion of the sand be examined in several locations. A risk California (a serpentine route with steep dunes protecting the Road and limestone analysis and long-term transport network cliffs known for its spectacular views of cliff regression along the Shipwreck strategy is required to identify what funding the Pacific Ocean) reopened fourteen Coast present a significant risk to the strategies will be required for the (likely to months after a massive landslide and ongoing operation and function of the be considerable) investment. US$54 million investment for the repair of Road. The alignment of the Great Ocean 400 metres stretch. North of Wollongong, Road has already been moved inland The functional nature of the current a spectacular, off-shore (parallel to coast) near Peterborough due to changes to the governance arrangements (reliant on a bridge has been built on the Grand Pacific coastline. Coastal inundation during winter coordinative approach where no entity is Drive when that section of the Road was 4. REAL RISKS 4. storm events can shut the Road in multiple accountable for integrated decision-making closed permanently due to rockfalls. locations. Slope instability in some locations and funding) is a barrier to the management has resulted in periodic closures of sections of potentially catastrophic risks of failure of of the Road in the past. the coastal assets and the Road itself.

53 Short-term and local perhaps counterproductive to – wider State region’s isolated natural beauty. planning priorities. interests prioritised For instance, on busy days, visitors pull off VicRoads delivers defined road projects. It the road and park where they can without Local, short-term and functional interests does not have additional funding to evaluate regard to the impact on the sensitive are prioritised in decision-making by default alternatives. When it receives funding for coastal environments. A lack of toilets at, due to the difficulty and time required to emergencies (such as land slippages) it is or near, popular places to stop along the achieve integrated decision making. required to repair or replace the existing Great Ocean Road means that visitors are road, rather than use additional funding to having toilet breaks in the vegetated land Councils report difficulty balancing construct an alternative design that would beside parking/road pull-offs instead. the local and state priorities on major provide a more resilient long-term option. development proposals, with no strategic directives to provide guidance on state Missed opportunities visitor economy priorities. Many interests Environmental risks

4. REAL RISKS 4. The Great Ocean Road Region is not need to be weighed up when evaluating Unmanaged visitation to the iconic and currently positioned to benefit from the major land development proposals. sensitive places along the Great Ocean rapidly growing international visitor The absence of a strategic framework Road (such as the Twelve Apostles) will economy (22 per cent per annum for the plan creates the risk that local planning damage the environment and degrade the last 10 years17). decisions will be out of sync with – and

54 Lorne Source: Visit Victoria Creating a strategy to provide Accommodation availability is a key accommodation proposals that would complimentary experiences would increase issue. Unless there is a diverse range of service the growth in the Great Ocean time visitors stay in the region, and spread accommodation options, visitors will be Road visitor economy. There is significant the visitor load across the day, region, deterred from staying for more than a uncertainty on processes, timing and and seasons. Creating a sustainable day. An additional 3,100 rooms (across all likely outcomes for development proposal visitation management plan would protect categories) is estimated as being required applications – leading to a lack of private the coastal and marine environment for for the projected growth in visitor overnight sector investment. future generations, provide a better visitor stays by 2026-27 18. experience (for both the touring route and places along it) and ensure there were Councils advise that the current options for affordable family holidays. governance arrangements hinder, rather than facilitate, suitable group 4. REAL RISKS 4.

17. Deloitte Access Economics report “Strategic Governance Options for the Great Ocean Road” based on International Visitor Survey (IVS), Tourism Research Australia 18. Analysis by Deloitte Access Economics based on International Visitor Survey (IVS) and National Visitor Survey (NVS), Tourism Research Australia.

55 Protecting our iconic coast and parks Lighthouse Cape Otway Visit Victoria Source:

56 Great Ocean Road Final Report Recommendations Recommendations

57 Protecting our iconic coast and parks

Recommendations

The Co-Chairs examined the governance models of a number of places with high visitation around the world and found that each adopted arrangements that best suited their location and circumstances. There was no model that could be transplanted from another location.

In other words, Victoria’s response to the the eastern edge of Warrnambool – and the future direction for development challenges of the Great Ocean Road must to manage visitation. of the region and has a long-term be as unique as the Road. outlook (addressing the risks and The transfer of responsibilities for opportunities of climate change) The area needs, and deserves, special managing the coastal Crown land and place-based governance arrangements. marine waters along the Great Ocean •• establishing planning guidelines After all, it has outstanding natural, Road from the current 11 responsible that provide clear direction on cultural, and heritage values, and is entities to the new Authority will provide appropriate land uses and design of immense importance to the State both the remit and imperative required standards across the area economy. to protect the distinctive landscapes and improve the visitor experience. It will •• establishing a standing advisory The first priority must be to protect the simplify management arrangements and committee to streamline planning environmental assets and isolated beauty increase transparency and accountability. approvals and provide independent experience that are the attraction for expert advice on sustainable visitors. A number of recommendations are visitation and related economic designed to provide clear direction and development matters That is why the establishment of a new consistent decision-making, increase independent statutory authority, the the community involvement in decision- •• establishing a co-ordinator general Great Ocean Road Coast and Parks making and visitor management, function within the new Authority Authority, has been proposed. The streamline planning approvals, and to coordinate timely and efficient Authority’s function would be to protect attract development proposals delivery of the state projects that the ecological and landscape integrity that benefit both tourists and local will be required over the next 20 of the National Heritage listed Great communities. years (such as visitor facilities Ocean Road, and its land and seascapes and infrastructure), deliver state 5. RECOMMENDATIONS 5. – including all adjacent coastal Crown Those recommendations include: construction projects, and minimise land and marine parks within the Shires disruption and inconvenience to of Surf Coast, Colac-Otway, Corangamite •• developing a strategic framework plan travellers and local communities. and Moyne (east of Warrnambool) and with local communities that provides

58 Great Ocean Road Final Report

State policy position

A formal state policy position is required to provide direction to the detail of the governance reforms and duties of responsible organisations. This policy position recognises the significance of the Great Ocean Road and its landscapes and the need for an integrated holistic approach to decision-making for the benefit of all Victorians.

Recommendation 1 Explanation Implementation detail Recognise the national significance of the Clear objectives are important for the •• Embed in the new legislation, State Great Ocean Road and its iconic coastal design of governance reforms and ideally, Planning Policy Framework and landscapes in State policies and establish should be embedded in legislation and municipal planning schemes. a commensurate decision-making framework with a focus on its preservation, regulations. •• Embed in future Crown land sustainable economic development, and a great visitor experience. The objectives and principles will provide management plans and land-use/ direction to the implementation of the landscape strategies for areas within Torquay Farmers Market recommended governance reforms, and the view of the Great Ocean Road. Source: Surf Coast Shire Recommendation 2 to responsible organisations for duties Adopt this proposition and five objectives that will have an impact on the Great to provide direction to the governance Ocean Road and its landscapes. These arrangements and decision-making have been developed with the Great frameworks. Ocean Road Taskforce members and key The iconic landscapes along the Great stakeholders, and then tested and refined Ocean Road have outstanding natural, heritage and cultural values and are to be through public consultation processes. treated as the one integrated and living entity for protection and the appreciation The proposition asserts that the country of future generations. through which the Great Ocean Road I. Protect the ecological and landscape traverses is to be acknowledged, integrity of coastal and marine respected and cared for as one environments integrated and living entity. This holistic II. Strengthen Traditional Owner involvement approach blends the wisdom of the III. Protect distinctive areas and landscapes Traditional Owners with a contemporary IV. Grow the local, state and national visitation economies approach to protect natural, cultural V. Modernise governance. and heritage values and distinctive landscapes.

59 Protecting our iconic coast and parks

Figure 12: Policy objectives to guide the design of governance arrangements and decision making

Objective Principle

Protect the ecological and ••Protect the marine and coastal environments along the Great Ocean Road, including the unique habitats, ecosystems, biodiversity and landscapes. landscape integrity of coastal ••Integrate Aboriginal traditional ecological knowledge with contemporary western ecological knowledge in environmental management. and marine environments ••Maintain the coastal assets and secure the coastal public land footprint for the enjoyment and appreciation of future generations. ••Prepare for, and manage, impacts of climate change on coastal public land and assets.

Increase Traditional Owner ••Acknowledge Eastern Maar and Wadawurrung People as Traditional Owners of the land, coastlines, waterways and seas along the Great Ocean Road. inclusion ••Recognise, protect, and promote the values, rights, and interests of the Eastern Maar and Wadawurrung People. ••Support, and equip the Eastern Maar and Wadawurrung to play an active role in shaping the future of their traditional lands, waterways and seas. ••Partner with the Eastern Maar and Wadawurrung in the development of policies, planning and management of the Great Ocean Road, its coastlines, landscapes and seas.

Protect distinctive areas and ••Recognise, protect and promote the natural, heritage and cultural values and distinctive characteristics of the Great Ocean Road and its landscapes landscapes and towns. ••Conserve the unique features and special characteristics of the Great Ocean Road, its landscapes and seascapes. ••Touch the land, coastlines, and waterways lightly and ensure there is a net gain for the environment out of any individual action, development or policy.

Grow the local, state and ••Recognise the importance of the Great Ocean Road, its land and seascapes to the economic prosperity, liveability and wellbeing of local national visitor economies communities and for all Victorians. ••Enhance the experience of the touring route and its destinations for all visitors, including international tourists. ••Recognise the importance of liveable coastal communities along the Great Ocean Road. ••Ensure responsibility for sustainable development of the Great Ocean Road visitor economy is shared by all levels of government, industries, businesses, local communities, and Victorians.

Modernise governance ••Provide visionary leadership and overarching direction to the management of the Great Ocean Road and its coastal landscapes and seascapes. ••Adopt a holistic approach with integrated strategic planning, coordinated implementation, and aligned decision-making for the length of the Great Ocean Road. ••Partner with Traditional Owners in the design of policies and planning for the future direction of Crown land and parks in the region. ••Protect the rights and interests of the Traditional Owner groups. ••Maintain ongoing dialogue with local communities, and prioritise community engagement in designing policies and planning for the Great Ocean Road and its landscapes. ••Develop a secure, long-term commitment to fund the delivery of strategic goals.

19. The definition of marine and coastal environments here has been adopted from the Marine and Coastal Act 2018. 20. The definition of Environment here is the “whole of the environment”. This definition has been adopted from the Environmental Protection Act 1970 “the physical factors of the surroundings including the land, waters, atmosphere, climate, sound, odours, tastes, the biological factors of animals and plants and the social factor of aesthetics”.

60 Great Ocean Road Final Report

•• prioritising projects along the •• all undeveloped Crown land within Recommendation 3 Great Ocean Road that protect and the settlement boundaries of coastal Recognise and protect the marine waters enhance the natural beauty and towns along the Great Ocean Road and coastal land along the Great Ocean resilience of coastal assets, and/or (from Torquay to Allansford) that is Road as the state significant ‘Great Ocean improve the visitor experience. not required for utilities or community Road Coast and Parks’ for protection, care infrastructure and investment. Implementation detail •• any other public land between the The Great Ocean Road Coast and Parks Great Ocean Road and the ocean, would be formally recognised as a state- with the extent of public land on the Explanation significant integrated and living entity in the inland side of the Road, and through new legislation and in policy documents. A clear message from stakeholders and the middle of the Great Otway National Park to be established the community is that there is a need It is intended that the Great Ocean Road during preparation of the legislation for an increased focus on protecting Coast and Parks includes: the coastal and marine environments •• all visitor facilities and sites along the along the Great Ocean Road, and for a •• all Crown land that is part of the Great Ocean Road located on public consolidated approach to the protection, Great Ocean Road and Scenic land (including private land leased by restoration, and visitation management Environs National Heritage listing the Government or obtained by some of public lands. A shared overarching (including Port Campbell National other arrangements). (regional) identity for the combined Park and coastal strip of the Great parks and public open spaces along the Otways National Park) The intent is to establish an identity for Great Ocean Road underpins such an the contiguous strip of coastal public •• marine waters along the Great Ocean approach. land and marine waters along the Road including Point Addis Marine Great Ocean Road as the Great Ocean Declaration of the Great Ocean Road National Park, Marengo Reefs Marine Road Coast and Parks. Note that the Coast and Parks, and their state Sanctuary, Twelve Apostles Marine declaration is not intended to alter importance, provides the basis for: National Park and the Arches Marine the reservation status or public use Sanctuary •• developing a cohesive and holistic classification of the Crown land parcels. approach to protecting the ecological •• all public land managed by Great and landscape integrity of the Great Ocean Road Coast Committee and Ocean Road, and engaging local Otway Coast Committee communities and visitors in its care •• all coastal Crown land in the Surf •• developing and maintaining Coast Shire, Colac-Otway Shire, RECOMMENDATIONS 5. contiguous coastal land experiences Corangamite Shire, and Moyne (east (such as trails) of Warrnambool)

61 Protecting our iconic coast and parks

A new overarching planning framework

A new planning framework is required to establish clear direction, consistent decision making and enable streamline planning approvals to facilitate appropriate development proposals that will service the visitor economy and provide a great visitor experience.

Explanation coastal and marine management plans) Recommendation 4 – creating a clean slate for the future Establish a statutory requirement to develop The experts and officials canvassed by management of the Road. a shared vision for the Great Ocean Road the Taskforce emphatically believe that region with a long-term outlook (50+ years). a unifying, strategic framework plan is The Great Ocean Road Strategic required to provide the broader context, Framework Plan requires statutory backing Recommendation 5 and coordinate functional and municipal to ensure it has the technical basis and planning processes along the length of power to provide direction and guidance Establish a statutory requirement to develop the Great Ocean Road. This would create to various public agencies for planning, and maintain an overarching Great Ocean infrastructure, services delivery and Road Strategic Framework Plan that: a longer-term, geographical view of • gives effect to the vision future directions for land-uses, landscape economic development. The Plan would • provides direction to municipal and management, and visitor facilities/ be incorporated into planning schemes so agency activities and decision making amenities. that future local amendments to planning • prioritises preservation of the ecological schemes would give effect to its land-use and landscape integrity of coastal and Once approved by the Minister and directions and private development would marine environments tabled in Parliament, the Great Ocean operate within its confines. • includes planning for sustainable visitation Road Strategic Framework Plan would and travel along the touring route; align the fragmented decision-making The accompanying planning guidelines • is developed with community participation and subsidiary planning processes and would provide more detailed direction on • is reviewed every 10 years activities of all relevant agencies and appropriate land-uses and development • identifies elements that organisations ustm local government authorities. It would design standards expected across have regard to, and those that are binding. integrate multiple policy priorities and the area. Development proposals that a range of land uses. It would establish meet or exceed the expected guidelines Recommendation 6 and manage interconnected urban and and design standards, and have met Establish planning guidelines to rural areas along the full length of the the obligation to work with the local

5. RECOMMENDATIONS 5. accompany the strategic framework plan Great Ocean Road. In addition, it would community to mobilise broad support that provide clear direction on appropriate necessitate the refreshing and rethinking for their project, would have access to land-uses and development design of stand-alone regional plans, portfolio or streamlined planning approvals processes standards across the area. place-based plans, and other statutory (as outlined in the recommendation on a planning products required (such as standing advisory committee).

62 Great Ocean Road Final Report

Preparation roads) will be important. This should •• outcomes and standards for the include an assessment of the risks to the whole of the Great Ocean Road, and The development of shared objectives Road from natural forces and climate key places along it and a strategic framework plan will change, and the associated investment •• strategic projects, priorities and integrate planning spatially and across required to manage and protect the assets. outcomes. portfolios. As a key policy setting process, it would be led by DELWP in collaboration Shared objectives would be developed The Great Ocean Road Strategic with all the public entities that will be to clearly outline the desired future for Framework Plan would be accompanied by: responsible for its implementation. places along the entire length of the •• detailed land-use and design Extensive public participation – both Great Ocean Road, with an outlook of planning guidelines, complete with within local communities and along the at least 50 years so that it considers the relevant standards and planning touring route and its hinterland – will be risks and challenges of climate change. permit considerations, and case required at multiple points during the studies/examples development process. The contents of the Great Ocean Road Strategic Framework Plan would cover the •• an implementation plan The first step is the assembly of the themes in Figure 16 and include: •• development contributions plan(s) considerable body of work that has •• shared long-term objectives for the and a monitoring, evaluation and already been done in subsidiary plans, Great Ocean Road, its landscapes reporting framework. strategies, technical reports, and baseline and seascapes data for the region, with an assessment of The Great Ocean Road Strategic •• a land-use management plan that the gaps and hot spots requiring attention. Framework Plan would be supported by gives effect to the vision and provides a number of updated or new (subsidiary) direction on future land-uses along Comprehensive and detailed technical companion documents: studies will need to be commissioned the Great Ocean Road and settlement •• Great Ocean Road touring and to better understand the values for boundaries for coastal towns visitation management plan protection, the key difficulties/constraints •• recognition, protection and promotion • marine and coastal Crown land on land-uses (such as land slippage or of natural, Traditional Owner, heritage • management plan(s) subsidence, cliff regression, flooding, and social values coastal inundation and erosion, acid- •• protection of the unique features and •• integrated coastal landscapes and sulphate soils, bushfire risks), visitor special characteristics of the Great public open space masterplans for capacity (road, accommodation, Ocean Road and its landscapes coastal towns along the Great Ocean environment and land-use), demand for Road •• sustainable visitation management facilities and services along the Great plan and regional economic priorities •• site masterplans for other high Ocean Road, and opportunities for (ensuring that touring route issues such visitation places along the Great sustainable economic development within Ocean Road (such as coastal town

as visitor accommodation, parking, RECOMMENDATIONS 5. the region and interface areas. and toilets are properly integrated) foreshore areas) • regional infrastructure strategies The early development of a longer-term •• strategies to address the risks of • – transport, telecommunications, transport network plan for the Great climate change, particularly for energy, water and wastewater Ocean Road (including the Princes coastal towns, coastal assets and to servicing strategies. Highway and north-south connecting the Great Ocean Road 63 Coverage Implementation detail

The coverage of the Great Ocean Road •• The requirements for preparation of the Strategic Framework Plan is based on shared vision and strategic framework the National Heritage-listed length of plan would be set out in the new the Great Ocean Road and its land and legislation including its contents, area seascapes, from Torquay to Allansford, of coverage, the responsible entities with secondary interface areas to the that must have regard to the strategic east, west and north (where significant framework plan and processes for tourism developments servicing the Great preparation and approval. Ocean Road might be located). The area of coverage includes the distinctive areas •• DELWP would lead development and landscapes, and national parks as of the Great Ocean Road Strategic well as the coastal towns. Framework Plan. This work is likely to take a couple of years and should The indicative area (below) would be commence as soon as it is funded. refined during preparation of the Great The introduction of the legislation will Ocean Road Strategic Framework Plan. strengthen its provisions and provide consistent direction in the longer term.

Figure 16: The Great Ocean Road Strategic Framework Plan would provide the “bigger picture to future local municipal and agency planning, and the means by which local planning gives effect to State priorities.”

The Great Ocean Road Region Strategic Framework Plan that provides direction to future municipal and agency activities and decision making

Landscape Marine waters, Aboriginal Heritage characteristics coast & parks values values

Town Transport & other Visitation Economic structure infrastructure Management development On holiday

64 Western Treatment Plant Figure 17: Indicative area for the Great Ocean Road Strategic Framework Plan Corio Norlane Portarlington

Geelong Clifton Springs Thomson Drysdale Leopold

Grovedale Lake Bellarine es Hwy Connewarre rinc Rd Hwy y P Moriac w P Torquay H ri Ocean Grove Queenscliff s n Modewarre e Camperdown ce y nc s Hw ri Hwy P s Barwon Heads P r ce i n Point Lonsdale n ri SU R F C O A ST Surf P Hwy c Coast e s wy H nces H w Pri y Cobden y w GeelongTorquay Pr H Birregurra Rd P inces Wensleydale es rinces wy Jan Juc inc H M O Y N E H Colac Pr w MOYNE y CORANGAMITEC O R A N G A M I T E Deans Marsh Anglesea WarrnamboolPrinces Hwy Glenfyne Port Fairy Barongarook Scotts Creek Fairhaven Timboon Simpson Forrest Curdievale Gellibrand Upper Gellibrand Lorne

Port Campbell Kennedys Creek Peterborough Wye River Beech Forest Rd CCOLACO L A C OOTWAYT W A Y an Lavers Hill ce Kennett River tO ea Gr Princetown Skenes Creek Gellibrand Lower Apollo Bay

Hordern Vale Marengo

Strategic Framework Plan - Indicative Area Great Ocean Road Significant Landscape Overlay (SLO) Interface Area InlandRoutes Coastal Reserve / Coastal Waters Melbourne City Freeway Marine National Park / Marine Sanctuary Regional Centre Highway National Park

Portland Town Arterial State Park Warrnambool Urban Extent Rail Line State Forest Local Government Area Watercourse Plantation Water body Other Public Land

65 Protecting our iconic coast and parks

•• ensure there are no surprises at a later An annual audit and report to Parliament Recommendation 7 date by engaging the community early on the extent to which progress is being Establish local community reference groups in the process made on implementing the Great Ocean along the Great Ocean Road to provide •• increase local community and key Road Strategic Framework Plan will provide input and guidance to the development of an incentive to all responsible organisations the strategic framework plan. stakeholder understanding, and strengthen support for the final to align their operational priorities and recommendations. reporting. The report to Parliament will provide increased transparency on the level Explanation Implementation detail of progress being made.

Engagement is about making better •• Embed in legislation a requirement for It is also important to periodically check and more sustainable decisions through public participation in the development that the implementation of the Great an inclusive process that engenders of the strategic framework plan. Ocean Road Strategic Framework Plan is trust and credibility. Community and •• Work with already established local delivering meaningful progress towards stakeholder engagement contributes community groups, structures and local the desired longer-term outcomes, such to informed decisions by bringing all forums where possible. as the protection of the ecological and perspectives to the table, identifying landscape integrity of the coastal and important issues early, and allowing marine environments. decisions to be understood and owned by Recommendation 8 We have come to the view that, in as many people as possible. Engagement Establish a statutory requirement to audit can also build and strengthen and report annually to parliament on the addition to a periodic assessment and relationships, which ultimately leads to implementation of the strategic framework reporting on the environmental condition, community ownership of outcomes. plan by the responsible public entities. it is also desirable to build a set of Environmental Economic Accounts for the Community co-design processes, with Recommendation 9 Great Ocean Road Coast and Parks. This opportunities for deep public participation will assist in tracking changes to state of and debate, will be essential to: Establish a statutory requirement for the marine and coastal environments, the Commissioner for Environmental impacts of management and external •• identify community values and Sustainability to periodically assess and preferences report on the environmental condition of drivers, and the contribution of the Great Ocean Road Coast and Parks to Victoria’s •• provide the broadest platform the Great Ocean Road Coast and Parks as part of the regular reporting on the State social and economic benefits. possible for local communities, and of the Environment in Victoria. all Victorians, to hear about and This approach is consistent with the contribute to establishing the future work of the Victorian Commissioner for directions for the Great Ocean Road Environmental Sustainability, who is 5. RECOMMENDATIONS 5. Coast and Parks Explanation required to report periodically on the State •• build capacity of stakeholders and The new governance arrangements are of Victoria’s environment (at least every interested communities to participate designed to increase accountability and five years) along with the preparation of in the project transparency. regional reports (such as the State of the Bays, State of land).

66 Implementation detail and the Wadawurrung People. The sacred sites, and the resources, values, and stories Enshrine in legislation the requirement associated with places along the Road to conduct: – as well as language and ceremonial •• an annual performance audit practices – have been handed down by and report to parliament on the their Ancestors and Elders. implementation of the Great Ocean Road Strategic Framework Plan by Aboriginal cultural heritage is protected the responsible organisations in Victoria under the Aboriginal Heritage Act 2006, which is given effect through •• a periodic assessment and report the Aboriginal Heritage Regulations 2018. on the environmental condition The Regulations prescribe standards, set of the Great Ocean Road Coast out the circumstances in which a Cultural and Parks by the Commissioner Heritage Management Plan should be for Environmental Sustainability prepared, and set fees and charges. This as part of the regular State of the system of protection is, however, triggered Environment reporting for Victoria by land development. •• build and maintain a set of Environmental Economic Accounts A project is required to support the for the Great Ocean Road Coast and Eastern Maar and Wadawurrung People Parks by the end of 2019. (and Aboriginal Heritage Victoria) to systematically recognise, map and (where appropriate) promote their tangible and Recommendation 10 intangible values so that all Victorians Support the Eastern Maar and can better understand the importance of Wadawurrung to map their cultural values the cultural heritage of the area. in the Great Ocean Road Coast and Parks. Implementation detail

Work with the Eastern Maar and Explanation Wadawurrung, along with Aboriginal The marine, coastal and forested Victoria to establish the methodology, landscapes along the Great Ocean project plan and timelines for the recording Road are of immense importance to its of tangible and intangible Aboriginal values Traditional Owners – the Eastern Maar of places along the Great Ocean Road.

21. There are areas in the Great Ocean Road Coast and Parks that do not have a Registered Aboriginal Party (a Traditional Owner group that holds the decision-making responsibilities for the protection, management and preservation of Aboriginal Cultural Heritage in their appointed areas) and therefore the responsibilities fall to Aboriginal Victoria who

administers the Aboriginal Heritage Act 2006. The Springs

67 Protecting our iconic coast and parks

Institutional changes

The suite of proposed institutional changes have been designed to work together as a state-led, place-based, governance and decision-making framework.

Recommendation 11 Explanation Establish a standing advisory committee to the Minister for Planning for the Great Ocean The coastal and rural landscapes along Road region (under Section 151 of the Planning and Environment Act 1987) to streamline the Great Ocean Road are sensitive planning approvals and provide independent expert advice on sustainable land development. and complex environments and FUNCTIONS: have numerous constraints on land i. Act as a review panel for planning scheme amendments and planning permit applications development. These constraints are due that are “called-in” by the Minister to the substantial areas of landscape ii. Act as a land-use and design review panel for the responsible authorities for visitor significance, environmental significance, economy development proposals that are consistent with the strategic framework plan and associated planning guidelines bushfire management requirements iii. Act as a review panel for coastal and marine management plans, and consents to use or and other natural constraints (such as develop marine and coastal Crown land in the Great Ocean Road Coast and Parks coastal inundation and erosion, riverine iv. Provide policy and strategic advice to the Minister on: flooding, land instability and subsidence, a. development and operation of the Great Ocean Road Regional Strategic Framework Plan acid-sulphate soils). A standing advisory b. protection of coastal environments and Crown land committee would facilitate consistent c. protection of the coastal public land footprint and public foreshore access decision-making on complex technical d. sustainable visitation management of the Great Ocean Road Coast and Parks matters over the long term. e. related matters referred by the Minister.

SKILLS: The councils along the Great Ocean Road state that they lack the capacity Whilst the advisory committee can seek expert skills as required, its membership would need to process large and complex planning to include all of the following skills: • strategic and statutory land-use planning applications. As a result, councils are • architecture, urban design and landscape architecture increasingly asking the Minister for • marine and coastal environmental science Planning to call in large and complex 5. RECOMMENDATIONS 5. • transport planning proposals. Councils would have access • Traditional Owner values to the standing advisory committee • heritage for expert advice on visitor economy • tourism and economic viability. development proposals that are consistent with the Great Ocean Road

68 Great Ocean Road Final Report

Lorne

Strategic Framework Plan. This would •• Prepare clearly articulated Recommendation 12 allow councils to identify appropriate information sheets outlining the developments and issue permits, reduce application process, information Streamline planning approvals by providing Planning services to supplement the the uncertainty that currently exists in the requirements and fees. councils’ capacity to assess large and planning approval processes pathway, •• The Secretariat to the advisory complex land development projects and simplify and expedite the approval of committee would provide pre- and ensure that referral agencies are adequately resourced. complex projects. application discussions for development proposals to assist the Given the national importance of the land owner/developer understand the Great Ocean Road Coast and Parks, application requirements and identify Explanation the standing advisory committee would the key issues. also be asked to provide independent Councils along the Great Ocean Road expert advice to the Minister on coastal •• The area of coverage for the advisory report that they don’t have the capacity management plans and coastal consent committee would include the Great to undertake the work required for permits. Ocean Road Strategic Framework decision-making on complex tourism Plan area but may also include land development proposals in sensitive

Implementation detail additional hinterland for projects landscape settings. RECOMMENDATIONS 5. servicing the Great Ocean Road •• Establish a standing advisory committee regional visitor economy. The department would provide specialist established under Section 151 of the planning services to assist council staff Planning and Environment Act 1987. assess and administer development proposals that service the visitor economy.

69 Protecting our iconic coast and parks

harsh forces of nature that the coastal Recommendation 13 environment experiences. A holistic, Establish a new statutory authority, the Great Ocean Road Coast and Parks Authority, with an whole-of-Great Ocean Road view is independent chair and skills-based board, to manage the coastal Crown land and marine parks required to protect our coastal assets, along the Great Ocean Road. improve the visitor experience and FUNCTIONS: manage visitation hot spots. The primary purpose is to protect and manage visitation of the Great Ocean Road Coast and Parks, to: • protect and enhance the ecological and landscape integrity of the coastal parks and A major change in governance marine areas along the Great Ocean Road arrangements is required for this • protect coastal assets (natural and built), the coastal public land footprint, and community access extraordinary and iconic place. This area • prepare for, and manage, the impacts of natural forces on, and climate change risks to, coastal public land and assets. is so special, and so significant, that it needs and deserves its own special OTHER PURPOSES: • sustainable visitation management including: governance arrangements. It requires -- operation of visitor facilities and camping grounds a dedicated, place-based, focus by an -- issuing of permits for events and commercial activities, leases and licenses entity that does not have to balance -- regulation of commercial operation in, on or around the Crown land and marine parks the allocation of resources to many • support the involvement of the Traditional Owners in the management of cultural values and competing priorities across the State. In natural resources (including Crown land) our opinion, this is best achieved through • coordinate government construction projects and disruptions along the Great Ocean Road the consolidation of the management • deliver construction projects • facilitate appropriate economic development of all coastal public land and marine • educate and foster community stewardship (and volunteerism) of coastal land. waters into the one new, independent POWERS REQUIRED TO: statutory authority that reports to one, • ensure funds raised (from caravan parks and leases etc) can be collected, held, remain with, lead Minister. and be allocated to initiatives within the Great Ocean Road Coast and Parks • purchase, consolidate, take on, transfer or otherwise acquire land for inclusion in the Great The totality of the tasks ahead requires Ocean Road Coast and Parks a great degree of dedicated focus • regulate commercial visitor operations in, on or around the Great Ocean Road Coast and Parks. and coordination for the full length of INDEPENDENT SKILLS BASED BOARD OF EXPERTS COVERING: the Great Ocean Road. This goes well • land-use planning and landscape architecture beyond the current remit and capacity • marine and coastal environmental science of the fragmented approach to Crown • travel, tourism, hospitality and leisure land management by eleven different • finance and investment facilitation organisations with very different • construction management capabilities and funding. • natural resource management • Eastern Maar and Wadawurrung values. Transfer of the responsibilities for managing the coastal Crown land and marine waters along the Great Explanation The protection and management of the Ocean Road from the current eleven responsible entities to the new authority

5. RECOMMENDATIONS 5. Crown land along the Great Ocean Road The most important governance task for is becoming an increasingly complex will provide both the remit and imperative the Great Ocean Road is to protect the and challenging task. The challenge required. It will simplify the management environmental assets and isolated beauty is expected to escalate into the future, arrangements considerably and increase experience for the enjoyment and benefit due to the increased visitor numbers transparency and accountability from the of future generations. and climate change accentuating the most executive levels of government down. 70 Great Ocean Road Final Report

Figure 18: A new statutory parks management authority, the Great Ocean Road Coast and Parks Authority

Parliament of Victoria Stand-alone Act administered by the Lead Minister (establishes the Great Ocean Road Coast and Parks Authority & an overarching statutory Planning Framework)

Potential Traditional Great Ocean Road Coast and Parks Authority Owner Land Management Board(s) Independent statutory entity: operations with a balance sheet that includes assets (Provides strategic land (manages Crown land, marine parks/reserves & visitation, coordinator general function for all State Investment) management direction for the public land area that they cover)

Board sub committees Independent skills based board Members to include expertise in: land-use planning; landscape architecture; marine and Marine and Coastal coastal environmental science; heritage; Eastern Maar values and cultural heritage; Environment and Asset Wadawurrung values and cultural heritage, tourism, hospitality and lesisure; finance and Protection subcommittee investment facilitation; construction

Great Ocean Road Tourism and Economic Development subcommittee Stakeholder involvement Environmental Condition Coast and Parks Care Coordinator-General structures Assesment and Research (field operations) Function Finance (coordinates major construction projects and GOR distruptions, Local community Subcommittee delivers construction projects) Strategic Framework Visitation Operations advisory committee(s) Plan Implementation (caravan parks, rangers, infringements etc) Risk and Audit Visitor Economy Environment advisory Subcommittee Facilitation Statutory Obligations/Plans Facility/Asset Maintenance committee (marine waters & coastal land, (gardening, cleaning, national parks, native vegetation, maintenance) heritage, Aboriginal heritage, Tourism Regulation Tourism Industry joint management) Community Stewardship advisory committee (education & volunteer services)

Visitor Management Licenses, Leases & Permits Planning Strengthening Traditional

Owner capacity Legend RECOMMENDATIONS 5. Great Ocean Road Community Liaison Coast and Parks Trust Fund Orange or white text is new activity/function

Green text is a current activity

71 Protecting our iconic coast and parks

Like the Great Barrier Reef Marine Park sustainable visitation and coordinate •• The Authority’s functions are broad Authority, the work of the Great Ocean the effective and timely delivery of the encompassing advisory, regulatory, Road Coast and Parks Authority would be major state projects (visitor facilities and management and service delivery, underpinned by science and research. Its infrastructure) that will be required over scientific research, park management, primary obligation would be to protect, the next 25 years (including coordination inter-jurisdiction activities, program rehabilitate and foster resilience of iconic of major disruptions along the touring design and implementation, coastal Crown land and marine areas route). The level of investment, and coordination and client representative along the Great Ocean Road. the technical challenges of building in for delivery of major state construction sensitive landscapes, make the future projects. A Board of between seven- Consolidation of Crown land management government investment pipeline on par and-twelve independent directors along the coastline under the management with major precinct scale development. with a diverse range of skills will be of the new entity will strengthen the These complex projects need to be required to govern the Authority. governance and oversight of public land managed and delivered with the of national importance, and provide a appropriate project governance and •• The role of the Minister is to establish stronger basis for integrated, risk-based, risk management skills, systems and the overarching expectations of management of coastal assets. It will performance monitoring. government and to oversee its reduce the difficulty of delivering multi- performance, typically formalised portfolio and multi- jurisdictional projects. The new agency will be a central point of through a Statement of Expectations It will also provide the remit for a touring- accountability and coordination for the (or obligations). This will require the route approach to visitor management – Great Ocean Road Coast and Parks, and Minister to liaise with other portfolio delivering a better visitor experience. the point of contact for all stakeholders, Ministers given the coordinative businesses and local communities on the (multiportfolio) coordinator-general The new Authority will also require a management of coastal environments and function of the Authority. coordinator-general function for effective and its visitation. It would also provide advice reliable delivery of the considerable pipeline on economic development facilitation •• The Minister should preserve a level of State and Commonwealth investment of independence for the new ahead. It will manage disruptions to travellers Implementation detail Authority to promote the objective, and local communities, deliver construction scientific and expert based projects and maintain an ongoing dialogue •• Prepare legislation to establish the management of the Great Ocean with local communities along the Great new independent Great Ocean Road Coast and Parks. Ocean Road. The co-ordinator general Road Coast and Parks Authority function in the new Authority could also be that includes a preamble by the •• The Chairperson is a pivotal role that used to deliver Geelong City Deal projects Traditional Owners of Country. needs to be independent, and filled along the Great Ocean Road. by a highly regarded individual of •• As a statutory authority, it will have recognised integrity and national 5. RECOMMENDATIONS 5. The new agency will need to be a skills-based board comprising credibility who is astute, understands adequately funded to build the critical independent members, and an strategic leadership and has the organisational capability, staff and independent chair to promote gravitas to lead the board and expertise to protect coastal and marine independence and objectivity in mentor the chief executive. It will be parks, protect coastal assets, manage decision-making. important that the Chairperson is

72 Great Ocean Road Final Report

not seen as representing a particular •• Research is a critical part of the Recommendation 14 interest group, is able to develop response to climate change and trust and respect within local and the Authority will be expected to Establish local community advisory scientific communities, and is able to form close partnerships with the CSIRO, committees, an environmental advisory committee, and a tourism industry advisory command respect internationally. the Bureau of Meteorology, various committee as ongoing forums for involving universities and other institutions, to local communities and key stakeholders in •• The other board members should be arrange and carry out research relevant the management of the Great Ocean Road independent and have significant to the coastal and marine parks. Coast and Parks. standing in their fields of expertise. The board membership must include (but •• In addition to its primary should not be limited to) an intimate accountability to the Victorian Explanation knowledge and familiarity with Eastern Government, the Authority will also Maar and Wadawurrung culture, values have responsibilities to the Australian It is critical for the board of the Great and practices; marine and coastal Government, its stakeholders and Ocean Road Coast and Parks Authority environmental sciences; land-use local communities. to understand the concerns and needs of planning and landscape architecture; all stakeholders, as well as other factors •• The co-ordinator general function tourism; finance and investment influencing the Authority’s operating in the new Authority will provide an facilitation; and construction environment. management. To the greatest extent important interface for coordinating possible, the board ought to reflect delivery of projects under the Geelong The work of the new Authority will be Traditional Owner, Victorian, national City Deal, and protocols for working supported on an ongoing basis by inputs and international perspectives. together will need to be developed. and contributions from community and environmental advisory committees •• Transfer Crown land and marine •• Given the major changes and and a tourism industry advisory parks management responsibilities challenges facing the new Authority, committee. These advisory committees from the eleven existing entities to it will be important to ensure that the will serve as forums for involving the the new Great Ocean Road Coast CEO has strong strategic capabilities, local communities and representative and Parks Authority (refer Maps 2- 5 so that the board’s agenda is organisations along the Great Ocean for the proposed area of coverage). supported with effective decision- Road, along with key stakeholders and making on a day-to-day basis. The •• Broad acre parks management will industry groups in the management of CEO will also need the credibility remain the responsibility of Parks the Great Ocean Road Coast and Parks. and background to represent the Victoria and fire management Great Ocean Road Coast and Parks An ongoing forum with status, and a responsibilities are unchanged. Authority internationally. process that engenders trust and credibility will assist not only the new authority 5. RECOMMENDATIONS 5. •• The new Authority will be expected but all the responsible organisations to to provide advice and make produce better and more sustainable recommendations in relation to the decisions and be more responsive to local care and development of the Great community and visitor needs. Community Ocean Road Coast and Parks, and regulation of its visitation. 73 Protecting our iconic coast and parks

and industry support, including a social Explanation Eastern Maar and the Wadawurrung. license to operate are central to positive, Support is required to strengthen non-confrontational interactions, local The new governance arrangements need their capacity to commit the time and stewardship and volunteerism. to be set out in legislation to establish an resourcing required for such a large enduring and lasting legacy for future program of works and for technical Implementation detail generations that cannot be easily undone assistance for their tasks. and destroyed by short-term imperatives. The advisory committees should be This additional support, resourcing and non-statutory as their structure and Stand-alone legislation will ensure that time is required to meet the minimum composition is likely to need to modify in future governments, there will always standard of “free, prior and informed over time. Their purpose will be to: be one Minister with accountability for consent”22 of future projects or decisions •• advise the authority (and other protecting the Great Ocean Road and that affect Crown land that is the agencies) on issues and policies as its distinctive landscapes, improving traditional lands of the Eastern Maar and they arise the visitor experience and attracting Wadawurrung People. investments that benefit both tourists and •• facilitate communication between local communities. user groups and interested parties in Implementation detail the local community Given that the new legislation is place- •• All responsible public entities provide •• promote the exchange of information specific, it is important to recognise the regular briefings and training on and raise awareness of issues First Nations People by the inclusion of a policies, regulatory systems and other impacting on the ecological and preamble written by the Traditional Owners, relevant topics. landscape integrity of the marine and the Eastern Maar and the Wadawurrung. •• Make a commitment to strengthen coastal environments the capacity of Eastern Maar and the •• increase the involvement and Recommendation 16 Wadawurrung to actively participate support of local communities in in the governance of the Great Ocean Strengthen the capacity of the Eastern the stewardship and visitation Maar and Wadawurrung to actively Road Coast and Parks. management of their part of the participate in the management of their •• Provide financial and technical Great Ocean Road Coast and Parks. traditional lands. support for the Eastern Maar and the Wadawurrung to establish an easy to Recommendation 15 use information storage and retrieval Explanation system to support their cultural Enshrine the new governance heritage management. arrangements for the Great Ocean Road, its landscapes and seascapes in stand- The preparation of the Great Ocean Road alone legislation that includes a preamble Strategic Framework Plan will require

5. RECOMMENDATIONS 5. by the Traditional Owners. significant input and resourcing from the Traditional Owners of Country, the

22. Australia supports (announced 3 April 2009) the United Nations Declaration on the Rights of Indigenous Peoples which affirms the minimum standard of free, prior and informed consent before decisions on projects or decisions that affect traditional lands. 74 Great Ocean Road Final Report

Sustainable funding model

Funding is required for the operations of the new authority, and for the pipeline of projects required to maintain and grow the visitor economy.

Whilst revenue streams will be transferred issues and administers tour operator Recommendation 17 with the Crown land management licences. Establish long term funding arrangements responsibilities for the Great Ocean Road The fees, set in accordance with the Tour for the new authority. Coast and Parks (primarily from caravan parks) these are insufficient for the coastal Operator Licence Fee Regulations 2011, asset protection, let alone to support the comprise an annual fee plus a use fee Recommendation 18 additional functions required as part of (which includes an annual cap on the Review the long-term risks from coastal the new governance arrangements. total amount of “use” fees a tour operator erosion and inundation, severe weather is required to pay). A single licence covers events and climate change on coastal A key principle of operation for the new all public land in the state that has the Crown land and assets. authority will be that funding raised on same manager. Crown land within the Great Ocean Road Coast and Parks will be reinvested locally. In 2017, Parks Victoria reported that 38,660 coaster buses (22 seaters) and Explanation 3,850 large coaches visited the Twelve Apostles (and Port Campbell National The new Great Ocean Road Coast and Recommendation 19 Park). The total funds raised from these Parks Authority will require sufficient Review the public land commercial tour visits is unknown, as is the number of funding to employ staff and deliver its operator and commercial activity provider buses that operated on the one licence, or functions with autonomy. licences system. the revenue raised could not be directly The current funding model for the attributable to the Twelve Apostles. management of Crown land and Explanation protection of coastal assets is primarily Implementation detail based on the revenue that can be raised A licence is required by people or The review would explore the structure of from that land (through leases of land, businesses who conduct organised tours the fees, the level of the cap, and the impact caravan parks and camping, and activity or recreational businesses for profit on

on operators of different fee scales. It RECOMMENDATIONS 5. permits). The level of investment and public land in Victoria (including land would also assess licencing administration protection of coastal assets ought not be and waters managed by and on behalf of and enforcement processes, the revenue dependent on the revenue stream that the Crown). Tour Operator Licences are raised annually, and the criteria around the can be raised from those assets. issued under the revlevant Act by which allocation of raised funds. the public land is managed. Parks Victoria

75 Supporting initiatives

There are a few actions required to support the governance reforms, and make an early start on implementation

delivery of a number of municipal services Recommendation 20 (such as cleaning and maintenance of Establish a working group to identify toilet and other visitor facilities, gardening, opportunities for shared municipal-like waste collection and management, services delivery along the Great Ocean compliance and enforcement). Road and develop an implementation plan. Implementation detail

Explanation •• Establish a project with support for a working group comprising staff from Municipal-like services are being delivered the department, councils, current by multiple organisations along the committees of management and Great Ocean Road, based on legacy land Parks Victoria to identify opportunities management responsibilities. This is and options for reduced costs and creating duplication (such as two rubbish consistent standards through shared collection contracts for the same road) delivery arrangements for municipal- and different standards (such as mow like services. lines23 in the middle of foreshore parks •• Build off the similar work already from contractors operating on different undertaken by Surf Coast Shire and timing cycles). There is scope for greater Great Ocean Road Coast Committee. efficiencies and consistent standards for

23. Mow lines are visible lines in the grassed public open space created when part of the area is mowed up to the boundary of the area maintained by another organisation. Port Campbell Shire Corangamite Source:

76 Great Ocean Road Final Report

Implementation detail experiences and reputational damage, Recommendation 21 environmental damage, increased Conduct a detailed review and update Review and align anomalous Crown land challenge for emergency management, reservations and parcel information of the public land reservations and social and traffic impacts on local within the Great Ocean Road Coast and information for public land in the Great communities, boom and bust cycles for Parks with the directions of the Strategic Ocean Road Coast and Parks, and local businesses and road safety issues. Framework Plan. tidy up anomalous land management delegations. Implementation detail

•• Conduct a multi-dimensional Explanation examination of capacities and issues Recommendation 22 along the Great Ocean Road to inform There are almost 170,000 hectares of Conduct a capacity analysis for the Great the development of a sustainable public land along the Great Ocean Ocean Road (the road, coast and marine visitation management plan for the environments, parks and key destinations, Road managed by at least 11 different Great Ocean Road Coast and Parks. organisations, with considerable accommodation, coastal towns) and identify visitation management options. •• Develop a sustainable visitation fragmentation of contiguous coastal management plan for the Great public land and administration based on Ocean Road Coast and Parks that legacy arrangements. Recommendation 23 protects the coastal and marine Develop a sustainable visitation environment for future generations, Land administration and on-ground management strategy for the Great management is difficult because Ocean Road Coast and Parks. provides a great visitor experience information systems for Crown land are (for both the touring route and places inadequate, with multiple databases along it) and continues to provide requiring consultation, gaps and options for affordable family holidays. inaccuracies and sometimes conflicting Explanation information. In addition, agreements (such as leases and licences) are not Visitor capacity was a key question raised centrally stored. in the community feedback discussions. The view of many people from local “Modern land administration relies communities is that this capacity is already on accurate, up to date mapping reached at peak times throughout the year. and database systems to support The consequences of exceeding the visitor planning decision making. There are capacity are significant – environmental few areas that are more critical to degradation at key sites (such as in the 24 effective public land management.” Port Campbell National Park), poor visitor RECOMMENDATIONS 5.

24. State-wide Assessment of Public Land Final Report’ by the Victorian Environment Assessment Council (1 July 2017).

77 Protecting our iconic coast and parks

already included in the National Land Road where there is a mobile signal, the Recommendation 24 Transport Network. The State could capacity is insufficient for the demand Review the risks to the ongoing operation ask the Commonwealth to consider during busy days making it difficult (and and function of the Great Ocean Road placing the Great Ocean Road and its sometime impossible) to obtain a mobile and develop a longer-term transport network strategy. connecting (north-south) routes to the phone signal. Princes Highway on the National Land Transport Network (in recognition of Digital connectivity is important for Recommendation 25 the national economic benefit from several reasons: Work with Road Safety Agencies to review visitors to the Great Ocean Road a. Improved visitor experience by and identify the priority projects to improve region and the investment required to providing: the safety and well-being of travellers along manage and protect those road assets). the Great Ocean Road. The Commonwealth and Victorian ••just-in-time access to information Government could consider how (such as nearby toilet or cafes) investment in the road network can be ••real-time touring information prioritised in Commonwealth funding and/or augmented reality tour Explanation programs such as the Infrastructure applications Program over the next 5-10 years. There are significant risks and hazards to ••the ability to share your experience the ongoing operation and function of the In addition, VicRoads advise that the with others – increasingly part of Great Ocean Road. The Road is protected Great Ocean Road has an above average the visitor experience is being able in many instances by adjacent coastal incidence of traffic accidents resulting in to instantly share their experience assets (natural and built) that are subject serious injuries. with others on-line (and post selfies) to intense pressures from wave action and erosion. Other nature-based risks ••navigation aid and trip advisory include slope instability and subsidence, information. Recommendation 26 and limestone cliff regression. The Road b. Road Safety – in the case of has been closed a number of times Establish the visitor expectations and accidents being able to raise the since it was built due to storm damage emergency services benefits of enhanced alarm or seek assistance, noting that digital capacity in towns, and connection and flooding, coastal inundation and to mobile phone services between towns, the topography is such that if a car landslides. It has also been moved inland along the Great Ocean Road. goes off the edge of the road there near Port Campbell due to cliff regression. may be no other way of raising the alarm or seeking help. A long-term transport network strategy is required to maintain the ongoing function c. Warnings – in the case of severe and operation of the Great Ocean Road Explanation weather or emergency events (such 5. RECOMMENDATIONS 5. as close to the ocean as possible. as bushfires), information can be Currently there is limited mobile phone pushed through text messages to service along the Great Ocean Road and Princes Highway West (Melbourne people in the area warning them of no signal at all between towns west of to Colac) provides important access imminent hazards or risks. to the Great Ocean Road and is Lorne. In locations along the Great Ocean

78 Apollo Bay Source: Colac Otway Shire 79 Anglesea cliffs at sunrise Anglesea cliffs © surfcoastimages Source:

DRAFT

80 Maps

DRAFT

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WoWongarrangarra CCoastaloastal RReserveeserve Protecting our iconic coast and parks Port Fairy Shire Moyne Source:

90 Great Ocean Road Final Report Appendix

91 Protecting our iconic coast and parks

Appendix A – Terms of Reference

Name of Project protect and preserve the exceptional scenery The Project of the tourist road. It was a pioneering planning Great Ocean Road Taskforce mechanism that led the way in the protection of On 14 September 2017, the Victorian Government land for its scenic environmental value. On 7 April announced an independently chaired Taskforce The issue 2011, the Great Ocean Road and Scenic Environs to investigate the management arrangements was added to the National Heritage list for its for the Great Ocean Road. The Taskforce The 243km Great Ocean Road is one of the functions are to: world’s most scenic and iconic coastal touring extraordinary historic and cultural significance. routes. Its sheer limestone cliffs, pockets of Today the Great Ocean Road governance 1. Review the effectiveness of the current rainforest, shipwreck history, and world class arrangements involves many different governance arrangements. surfing breaks makes the Great Ocean Road organisations that operate across a range 2. Consult extensively with Traditional Owners one of Australia’s most popular destinations of geographical scales, timeframes and of Country, responsible public entities and for visitors and Victoria’s most significant jurisdictional boundaries. There are over 20 local communities. tourism asset. responsible public entities with accountabilities 3. Make recommendations on governance The coastal and forested landscapes along from strategy development and implementation; land-use planning, management and reforms to protect the distinctive the Great Ocean Road are of high cultural, landscapes, improve the visitor experience ecological and economic importance to the administration, infrastructure delivery, asset maintenance, emergency management, and attract investments that benefit both Eastern Maar and Wadawurrung People who tourists and local communities. have known this Country, and cared for it, since investment facilitation, destination promotion the beginning. The coastline also includes rare and brand stewardship. Responsibility for The Taskforce investigations are to include polar dinosaur fossil sites, the best-known one managing the contiguous coastal foreshore, examination of options for reducing barriers being Dinosaur Cove and fossils collected from public open spaces and parklands along the to appropriate development in the area, numerous sites along the coast continue to yield Great Ocean Road is also fragmented. consideration of an over-sighting body or important scientific information. The Victorian Government has established independent authority covering the length of the independently chaired Great Ocean Road the road, and examination of other appropriate Constructed by returned servicemen as governance arrangements. a memorial to Victoria’s First World War Taskforce to review the effectiveness of current servicemen and women, the Great Ocean governance arrangements and to make The work of the Taskforce will build on, and Road is a constant reminder of their war recommendations to strengthen protection review the implementation of, the 2015-2025 service and sacrifice. It was a huge engineering of the landscape setting, improve the visitor Strategic Master Plan for the Great Ocean feat at that time and connected isolated experience, provide greater certainty in land-use Road Region Visitor Economy, the Shipwreck coastal communities. planning and attract investment proposals that Coast Masterplan 2015, the 2004 Great Ocean will benefit tourists and local communities. Road Regional Strategy and the VicRoads The Ocean Road Planning Scheme was Great Ocean Road Management Strategy developed in 1955 by the Victorian Town 2013. It will also draw on the experience of and Country Planning Board to establish an cooperative efforts during the Wye River Bushfire integrated approach across four local shires to

92 Great Ocean Road Final Report

Reconstruction process. c. maintain appropriate environmental delivery processes and improve communications and landscape protections. with visitors and local communities. The Taskforce will report to three coordinating Ministers: Minister for Planning (lead), the The Taskforce will undertake the following Roles & Tasks Minister for Regional Development and the administrative tasks: Minister for Tourism and Major Events. The role of the Taskforce is to identify gaps, 1. Receive and note monthly reports on points of duplication and recommendations for progress against program milestones, sign Study Area better coordination across government agencies off status and scope change. in project delivery and communications The primary study area is the Great Ocean 2. Provide input into all Taskforce discussion to achieve better tourism, access and Road and its landscape from Torquay to Port papers and reports. environmental outcomes. Fairy (including settlements). The secondary 3. Review relevant materials prior to all study area includes more of the hinterland for The Taskforce will undertake extensive taskforce meetings. consideration of infrastructure and projects consultation to consider the strengths 4. Endorse relevant papers and reports for that contribute to the Great Ocean Road visitor and weaknesses of current management Ministerial consideration. experience. The project study area includes arrangements and an assessment of project 5. Provide input into communications parts of the municipalities of Surf Coast, Colac- delivery processes across government applicable to the project. Otway, Corangamite, Moyne and Warrnambool. departments and agencies. 6. Confirm completion and handover of the The outputs to be delivered comprise: Purpose of the Taskforce project. • Initial report to the coordinating Ministers The Taskforce is to at the end of 2017 on early insights and key Constraints 1. Review the effectiveness of current Great issues. The Taskforce can only make recommendations Ocean Road governance arrangements. • An Issues and Options Discussion Paper for in relation to the scope and content of this public release and comment. 2. Undertake extensive consultation with the Project. Traditional Owners of Country, responsible • Community views report. The role of the Co-Chairs of the Taskforce is to public entities, key stakeholders and the • Final report with recommended governance provide independent advice to the coordinating community. reforms. Ministers (Minister for Planning, Minister for 3. Report to the Victorian Government within The final report is to canvas options for reducing Regional Development and the Minister for twelve months with recommended reforms barriers to appropriate development in the Tourism and Major Events). to governance arrangements for the Great area, evaluate the merits of an over-sighting Ocean Road and its landscapes. The Chairs will seek (and record) the views of body or independent authority covering Taskforce members on their recommendations 4. Make recommendations on governance the length of the road, and examine other to Government. reforms to: appropriate governance arrangements. It a. boost tourism expenditure and is to make recommendations on reforms to The advice and recommendations will inform investment along the Great Ocean Road governance arrangements for the Great Ocean decision-making by the Victorian Government. b. better support local communities to Road to improve economic, community and benefit from the visitation economy environmental outcomes, improve project

93 Protecting our iconic coast and parks

Membership • Barwon Water and Wannon Water • Support the Taskforce in developing options • Corangamite Catchment Management for the management of the Great Ocean Road. The Taskforce membership comprises: Authority and Glenelg-Hopkins Catchment • Oversee any consultancy work undertaken for • independent Co-Chairs Mr Peter Batchelor Management Authority the Taskforce. and Mr Terry Mulder • Country Fire Authority • Prepare a report with proposed • nominees of the Traditional Owners of • DELWP and RDV Barwon recommendations regarding management Country for the Great Ocean Road: South West (Project co-sponsors) arrangements, project delivery processes and –– Eastern Maar • Emergency Management Victoria communications. –– Wadawurrung • Great Ocean Road Committee of • Following the response from government, • members with expertise and experience in Management and Otway Coast Committee of prepare a business case for the tourism and coastal management, and have Management establishment/ongoing management of the Great Ocean Road. an understanding of the key issues relating • Great South Coast Regional Partnership to the governance of the Great Ocean Road: • Heritage Victoria The Secretariat will also provide the following support to the Taskforce: –– Ms Diane James • Major Economic Projects and Transport for –– Ms Elaine Carbines Victoria (DEDJTR) • Prepare and distribute agendas –– Mr Wayne Kayler-Thomson • Parks Victoria • Prepare and distribute meeting minutes • CEOs from the Local Government Authorities • VicRoads, South West • Undertake project work between meetings. along the Great Ocean Road: • Visit Victoria Information for the Taskforce will be distributed at least five working days prior to any meeting to –– Mr Andrew Mason – CEO Corangamite Other bodies to be consulted and invited onto the ensure members have adequate time to read any Shire reference group on an as needs basis. –– Mr Bruce Anson – CEO Warrnambool documentation. City Council Support Meetings –– Mr David Madden – CEO Moyne Shire The Taskforce will be supported by a Secretariat Council The first meeting will be convened in October to be convened by DELWP, and comprise a Project 2017. The Taskforce will meet regularly with the –– Mr Keith Baillie – CEO Surf Coast Shire Manager and Project Officers in the initial one- agenda prepared by the Project Manager and –– Mr Robert Dobrzynski/Mr Tony McGann year period (equivalent to at least 2 full people). distributed at least five days before the meeting. – Acting CEO Colac Otway Shire The role of the secretariat is to: Meeting dates will be determined as required but • Develop a Project Plan, Budget, are envisaged to be approximately bi-monthly. Project Reference Group Communications and Engagement plan, risk register and other project management tools The Taskforce will also be supported by a Timeframe as required Project Reference Group. The Project Reference Group will be convened by the Secretariat • Support the Taskforce in the review of the The Taskforce is to review the effectiveness of and will consist of the Traditional Owners of delivery of the 2004 Great Ocean Road current governance arrangements and recommend Country for the length of the Great Ocean Road Strategy and project delivery processes across governance reforms by the end of 2018. (Wadawurrung and Eastern Maar), responsible government departments and agencies The Taskforce will operate until the project is public entities and key stakeholders. relevant to the delivery of the strategy completed or until the project is placed on hold for • Manage stakeholder and consultation Permanent members of the Reference Group include: a period more than six (6) months. activities. • Barwon Regional Partnership 94 © The State of Victoria Department of Disclaimer Environment, Land, Water & Planning 2018 Accessibility This publication may be of assistance to you This work is licensed under a Creative but the State of Victoria and its employees do If you would like to receive this Commons Attribution 4.0 International licence. not guarantee that the publication is without You are free to re-use the work under that flaw of any kind or is wholly appropriate publication in an alternative licence, on the condition that you credit the for your particular purposes and therefore format, please telephone the State of Victoria as author. The licence does disclaims all liability for any error, loss or other not apply to any images, photographs or consequence which may arise from you relying DELWP Customer Service branding, including the Victorian Coat of on any information in this publication. Centre on 136186, email Arms, the Victorian Government logo and the Department of Environment, Land, Water [email protected]. and Planning (DELWP) logo. To view a copy of gov.au or via the National Relay this licence, visit http://creativecommons.org/ licenses/by/4.0/ Service on 133 677 www.relayservice.com.au. This

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95 B100