Our Ref: DOC20/266610-3 Your Ref: Draft LSPS – e-mail dated 2 April 2020

General Manager Byron Shire Council PO Box 219 Mullumbimby NSW 2482

Attention: Ms Alex Caras

Dear Mr Arnold

RE: Byron Shire Council – Draft Local Strategic Planning Statement

I refer to the e-mail from Mr Peter Cameron from the NSW Department of Planning, Industry and Environment dated 2 April 2020 about the Byron Shire Council’s Draft Local Strategic Planning Statement (Draft LSPS), seeking comments from the Department’s Biodiversity and Conservation Division (BCD) in the Environment, Energy and Science Group. I appreciate the opportunity to provide input.

The BCD was formerly part of the Office of Environment and Heritage, but now forms part of a Group that has responsibilities relating to biodiversity (including threatened species and ecological communities, or their habitats), Aboriginal cultural heritage, National Parks and Wildlife Service estate, climate change, sustainability, flooding, coastal and estuary matters.

We have undertaken a comprehensive review of the Draft LSPS and its associated strategies and plans. While we recognise there are restrictions on the length of LSPSs, generally, the Draft LSPS lacks specific actions for the Byron Shire Council (BSC) to satisfy the Directions of the North Coast Regional Plan (NCRP). In addition, the LSPS may be unable to achieve the desired themes and planning priorities, based on the planning priorities and actions contained therein.

These issues are discussed in detail in Attachment 1 to this letter.

In summary, the BCD recommends that:

1. The additional actions set out in Attachment 1 of this letter should be included within the Draft LSPS to ensure that biodiversity values are identified and protected.

2. The council:

a. incorporates the additional text and actions in relation to climate change impacts at various sections of the Draft LSPS, as outlined in Attachment 1 of this letter.

b. includes those actions listed on pages four and five of Attachment 1 of our previous letter to the Byron Shire Council, dated 25 October 2019, where relevant to flooding, water quality and waterway health.

Level 8, 24 Moonee Street, , NSW 2450 | Locked Bag 914, Coffs Harbour Ph (02) 6659 8200| dpie.nsw.gov.au | Page 2

c. includes an additional planning priority, along with relevant actions, to ensure Aboriginal cultural heritage values are respected and protected via the land use planning system within Byron Shire, as required by the North Coast Regional Plan. As such, the planning priority and actions included on page 3 of Attachment 1 of the BCDs previous correspondence to council dated 25 October 2019 should be incorporated into the Draft LSPS.

If you have any questions about this advice, please do not hesitate to contact Ms Nicky Owner, Senior Conservation Planning Officer, at [email protected] or 6659 8254.

Yours sincerely

DIMITRI YOUNG Senior Team Leader Planning, North East Branch Biodiversity and Conservation

Enclosure: Attachment 1: Detailed BCD Comments – Byron Draft Local Strategic Planning Statement cc: Mr Peter Cameron, Planning and Assessment Group

Attachment 1: Detailed BCD Comments – Byron Draft Local Strategic Planning Statement

We understand the Byron Shire Council’s Draft Local Strategic Planning Statement (Draft LSPS) provides a high-level explanation of the planning context for Byron Shire. It provides this by outlining the broad themes for Environment, Liveability, Economy and Infrastructure.

Each theme includes a general overview followed by corresponding planning priorities and actions, some of which are relevant to the statutory responsibilities of the Biodiversity Conservation Division (BCD) and the Climate Resilience and Net Zero Emissions Branch (CRANZE) of the Department of Planning, Industry and Environment.

These matters and recommendations for amendments or additions to the Draft LSPS are discussed below.

A. Theme 1 – A Sustainable Shire.

This theme includes three planning priorities.

Planning Priority SP1 – protect and enhance our biodiversity, ecosystems and ecology.

This planning priority includes the following actions:

Action SA1 – Review and update LEP and DCP to reflect HEV vegetation mapping and implement E zones in accordance with State Government requirements.

Action SA2 – Review and update Byron Shire’s Conservation Strategy, and implement priority actions.

Action SA3 – Finalise Shire wide integrated Pest Management Strategy, and implement priority actions.

Action SA4 – Implement KPoM and Flying Fox Camp Management Plan.

It is our view that these actions will not in themselves achieve the intended outcome of this planning priority.

BCD Recommendations:

The LSPS should include the following actions for Planning Priority SP1:

1. Identify and verify areas of High Environmental Value (HEV) attributes (noting that HEV includes many attributes, not only native vegetation).

2. Map extant vegetation across the Byron Local Government Area (LGA) using the Bionet Vegetation Classification to identify vegetation to ‘Plant Community Type’ (PCT) level.

3. Identify PCTs that form part of any Threatened Ecological Communities (TECs) as listed in accordance with the provisions of the Biodiversity Conservation Act 2016 (BC Act).

4. Identify, protect and enhance important biodiversity corridors, including consideration of the likely ecosystem change and species shift due to climate change, and incorporate these corridors into strategic and development planning processes.

Page 1 of 4 Attachment 1: Detailed BCD Comments – Byron Shire – Draft LSPS

5. Assign an appropriate environmental protection zone, E2 – Environmental Conservation or E3 – Environmental Management to areas of confirmed HEV, depending of the attributes present.

6. Rezoned to E2 – Environmental Conservation those areas of land with confirmed TECs listed as ‘Potential Serious and Irreversible Impact’ entities in the ‘Guidance to assist a decision maker to determine a serious and irreversible impact’.

7. Include local provisions in the Local Environmental Plan (LEP), along with associated map overlays and Development Control Plan (DCP) provisions for:

a. Confirmed HEV lands where zoning to E2 or E3 is not possible, and

b. Land identified as an important biodiversity corridor.

8. Prepare a comprehensive Koala Plan of Management (KPoM) for the whole local government area and include relevant controls within the LEP and DCP to ensure appropriate zoning of areas of core koala habitat to E2 and to ensure incompatible development does not occur within areas of important koala habitat.

9. Focus development to areas of least biodiversity sensitivity and the ‘avoid, minimise, offset’ hierarchy implemented for biodiversity and areas of HEV.

10. Promote the establishment of biodiversity stewardship site agreements, funded or unfunded conservation agreements, or wildlife refuges via the Biodiversity Conservation Trust, as voluntary mechanisms to enhance areas of confirmed HEV and important biodiversity corridors on private (and some public) land.

11. Promote biodiversity certification of new urban release areas, where appropriate.

12. Identify areas of important biodiversity in the local context for nomination by the council to the Environment Agency Head, for inclusion on the Biodiversity Values Map.

Planning Priority SP2 - Strive to become a sustainable community

This planning priority includes the following actions:

Action SA5 – Work towards council’s zero emissions target.

Action SA6 – Support community environmental and sustainability projects.

We acknowledge the inclusion of the community emissions profile and the comprehensive list of achievements, however, other than climate change, the LSPS is silent on the management of natural hazards, including flooding, as well as water quality and waterway health. Additional actions would assist in achieving this planning priority. BCD Recommendations:

13. Under Planning Priority SP2, the LSPS should:

a. reference the Byron Shire’s most recent community wide emissions profile available at https://snapshotclimate.com.au/locality/australia/new-south-wales/byron/

b. continue to consider updated climate change information and monitor and report to the community on progress against climate resilience and net zero goals.

Page 2 of 4 Attachment 1: Detailed BCD Comments – Byron Shire – Draft LSPS

14. include those actions listed on pages four and five of Attachment 1 of our previous letter to the Byron Shire Council, dated 25 October 2019, where relevant to flooding, water quality and waterway health. Planning Priority SP3 – Adapt to climate change and build resilience

This planning priority includes the following actions: Action SA7 – Develop a climate emergency plan.

Action SA8 – Work in collaboration with local community, non-government organisations, NRJO and State Government to deliver planning adaption actions in the shire.

BCD Recommendations:

For Planning Priority SP3, the LSPS should:

15. Consider referring to the ‘Integrated Regional Vulnerability Assessment: North Coast of (2016)’ and the ‘North Coast Enabling Regional Adaptation region report (2019)’ prepared by Department of Planning, Industry and Environment (DPIE) which provides an evidence base for the likely vulnerability to the impacts of projected climate change for the North Coast region.

16. Include the following actions:

a. Consider the regional systems transition model as outlined in the ‘North Coast Enabling Regional Adaptation region report (2019)’ when developing operational policy, undertaking strategic planning, delivering council programs and assessing future infrastructure needs.

b. Assess and manage the impacts of climate change (such as heat, floods, storms and drought) on Council’s assets and services utilising NSW Government’s ‘Guide to Climate Change Risk Assessment for NSW Local Government’. Enable communities and individuals to be better prepared and more resilient.

B. Theme 2 - A Liveable Shire

This theme includes the following planning priority:

Planning Priority LP1 – Support and celebrate our heritage, vibrant culture and diverse lifestyles.

While we support this priority, we encourage the council to include an additional planning priority, along with relevant actions to ensure Aboriginal cultural heritage values are respected and protected via the land use planning system within the Byron Shire, as required by the North Coast Regional Plan.

BCD Recommendations:

17. The planning priority and actions fore Aboriginal cultural heritage included on page 3 of Attachment 1 of the BCDs previous correspondence to council dated 25 October 2019 should be incorporated into the Draft LSPS.

18. This planning prioirty should:

a. Consider referring to the ‘North Coast Enabling Regional Adaptation region report (2019)’ prepared by the DPIE which provides an evidence base for potential vulnerability to the impacts of projected climate change for the North Coast region.

Page 3 of 4 Attachment 1: Detailed BCD Comments – Byron Shire – Draft LSPS

b. Consider the ‘Cultural Heritage, and ‘Resilient Communities’ tranisition models to generate further actions to increase climate readiness.

In relation to Planning Priority LP2 – Create great places that support and encourage an active, connected community, we suggest that council:

19. Include an additional action to ensure a range of urban design and land use planning strategies are developed and implemented to minimise heat in local government areas described in ‘Minimising the Impacts of Extreme Heat: A guide for Local Government’.

C. Theme - A Thriving Shire

BCD Recommendation: 20. Consider referring to the ‘North Coast Enabling Regional Adaptation region report (2019)’ prepared by the DPIE which provides an evidence base for potential vulnerability to the impacts of projected climate change for the North Coast region. Consider the ‘Food and Agriculture’, ‘Tourism’ and ‘Settlements and Land Use Planning’ tranisition models to generate further actions to increase climate readiness.

D. Theme - A Connected Shire

BCD Recommendation: 21. Consider referring to the ‘North Coast Enabling Regional Adaptation region report (2019)’ prepared by the DPIE which provides an evidence base for potential vulnerability to the impacts of projected climate change for the North Coast region. Consider the ‘Energy’, ‘Infrastructure and Water’ and ‘Resilient Communities’ tranisition models to generate further actions to increase climate readiness. Further climate change resources

Further information is also available at https://climatechange.environment.nsw.gov.au/Adapting-to- climate-change/Local-government/Adaptation-planning

Page 4 of 4

Our ref: DOC20/277996 Byron Shire - LSPS Your ref: Byron Shire Council Draft LSPS Attention: General Manager Byron Shire Council PO Box 219 Mullumbimby NSW 2482 Emailed: [email protected]

9 April 2020

To Whom it may concern, Subject: Byron Shire Council – Draft Local Strategic Planning Statement (LSPS). Thank you for the opportunity to provide comment on the above matter. This is a response from the NSW Department of Planning, Industry & Environment – Division of Resources & Geoscience. The Division has reviewed the Byron Shire Council - Draft LSPS and notes mineral and extractive resources have not been specifically addressed in this document. However, the LSPS has been aligned with the land use planning directions specified in the North Coast Regional Plan, which recognises the importance of extractive industries in future land use planning within the North Coast Region (Direction 13: Sustainably manage natural resources). Accordingly, the Division has no concerns with the draft LSPS. Queries regarding the above information should be directed to the Division of Resources & Geoscience - Land Use team at [email protected]

Yours sincerely,

Steven Palmer Manager, Land Use Assessment Geological Survey of NSW, Division of Resources & Geoscience

PO Box 344 Hunter Region Mail Centre NSW 2310 | dpie.nsw.gov.au | 1

IRF20/3446

Mark Arnold General Manager Byron Shire Council PO Box 219 MULLUMBIMBY NSW 2482

Dear Mr Arnold

Byron Shire Council Local Strategic Planning Statement

I am writing in response to Byron Shire Council’s public exhibition of its Local Strategic Planning Statement (LSPS), which has been prepared to meet the requirements of Division 3.1 of the Environmental Planning and Assessment Act 1979.

The LSPS will be a key resource to guide the implementation of strategic and statutory planning at the local level, including the assessment of future planning proposals.

I would like to commend Council for the work undertaken to date in the development of the draft LSPS and for seeking a comprehensive approach to strategic land use planning for the Byron Shire.

The draft LSPS has been reviewed by the Department’s Local and Regional Planning - Northern Region team and specific comments in relation to the draft LSPS are included in the attached schedule.

Please ensure that the content and actions in the final LSPS are consistent with State planning, including the North Coast Regional Plan 2036, State Environmental Planning Policies and section 9.1 Ministerial Directions.

I look forward to working with Council as part of the NSW government’s commitment to a strategic-led planning framework.

Should you have any enquiries about this matter, I have arranged for Mr Peter Cameron to assist you. Mr Cameron can be contacted on (02) 65885518.

Yours sincerely

5-5-2020 Jeremy Gray Director, Northern Region Local and Regional Planning

Northern Region | 49 Victoria Street Grafton NSW 2460 | Locked Bag 9022 Grafton NSW 2460 | planning.nsw.gov.au Schedule

Overview The Department’s review has concluded that the Byron Shire Local Strategic Planning Statement (LSPS) generally provides a good summary of the land use planning challenges that need to be considered in the Byron Shire in the coming 20 years.

The LSPS is clearly structured around major land use planning themes and there is generally good alignment with the North Coast Regional Plan. Council is to be commended for its ongoing commitment to strategic planning, including a focus on the quality of places and local communities.

Council’s planning response to regional planning challenges is largely proposed to be addressed through a number of key LSPS actions, most notably: • Action LA7 - (i) Finalise draft Byron Shire Residential Strategy and (ii) implement relevant priority actions. • Action TA6 - Finalise Business & Industrial Lands Strategy and implement priority actions. • Action CA4 - Prepare an Integrated Transport and Movement Plan for the Shire. These key strategies are at different stages of preparation and will include a range of important actions that are currently not in the LSPS.

At present, it is necessary for readers of the LSPS to also read the other Council strategies. Council is therefore encouraged to provide more detail in the LSPS regarding Council’s proposed land use planning priorities.

The Department will aim to work constructively with Council in the preparation of the key strategies to deliver the directions and actions in the North Coast Regional Plan.

Byron Shire Moving Forward The population projections referenced throughout the LSPS are based on the population and dwelling projections issued by the Department in 2016, which are also referenced in the North Coast Regional Plan.

This is acceptable as the basis for the LSPS, however, more recent population projections for the Byron Shire have been issued by the Department in December 2019: https://www.planning.nsw.gov.au/Research-and-Demography/Population- projections/Projections. It will be important that Council utilise the most recent population projections in its ongoing strategic planning to provide an up-to-date basis for actions arising from the LSPS.

Vision The Department has previously suggested that LSPS visions incorporate place-specific detail, so that each vision is unique to the area in question.

At present, the Byron Shire vision lacks detail that is particular to the Byron Shire. However, it is noted that Council intends to review the LSPS in the short term, in conjunction with the next review of the Byron Shire Community Strategic Plan (CSP) in 2021 (p.58) and that this will provide an opportunity for further community engagement (p.1).

It is recommended that Council aim to include a more detailed land use vision for the Byron Shire in the LSPS, including detail from existing strategies and place plans.

Northern Region | 49 Victoria Street Grafton NSW 2460 | Locked Bag 9022 Grafton NSW 2460 | planning.nsw.gov.au It is also recommended that Council consult the Department regarding the proposed integration of the LSPS and CSP (p.58) to ensure that the LSPS is effective as a summary land use planning strategy and that all legislative requirements are met.

A Sustainable Shire The LSPS is generally consistent with the environmental directions and actions in the North Coast Regional Plan and the Department is supportive of Council’s proposed initiatives, including the review of the Byron Shire Biodiversity Conservation Strategy and ongoing E zone implementation program in accordance with state government requirements. The line of sight diagram on p.19 should be amended to reference Directions 1 and 4 in the Regional Plan, noting that the LSPS response to Direction 1; Actions 1.1 to 1.3, will be based on Council’s local growth management strategies, as discussed in the Liveable Shire and Thriving Shire parts of the LSPS.

It is recommended that Council address Action CA3 of the LSPS in the context of Direction 3 and Action 3.2 of the Regional Plan, and that this may be better located in the Sustainable Shire part of the LSPS, along with any other actions related to Council’s ongoing coastal management and flood planning.

Council may also wish to include a response to Action 2.2 in the Regional Plan, which is to ensure that local plans manage marine environments, water catchment areas and groundwater sources.

A Liveable Shire The Department is supportive of Council’s strategic planning for residential development, including the preparation of the draft Byron Shire Residential Strategy, consistent with Action 1.3 in the Regional Plan. This Strategy has not been finalised by Council and it has therefore not been possible for the Department to conclude its review of the Residential Strategy in conjunction with a review of the LSPS.

The Department is unable to endorse the ‘Possible Investigation Areas – Residential Land’ in Figures 10 and 19 of the LSPS, which are derived from the draft Residential Strategy, until Council has responded to the Department’s comments on the draft Strategy in December 2019. In summary, the Department has noted that the proposed investigation areas include land that is affected by primary constraints such as flooding and mapped important farmland. The Department has advised that any potential inconsistencies with the urban growth area in the Regional Plan should be assessed against the Urban Growth Area Variation Principles and the North Coast Settlement Planning Guidelines 2019 in Council’s submission of the final Residential Strategy for the Department’s approval.

If Council wishes to show the proposed residential investigation areas in the LSPS, the terminology used to describe these areas should be changed to ‘Preliminary Investigation Area’ and it should be clearly noted in the LSPS in conjunction with any commentary and mapping related to the Preliminary Investigation Areas that: The Preliminary Investigation Areas include land that is outside the Urban Growth Area in the North Coast Regional Plan. Council is undertaking preliminary strategic investigations to determine whether the Preliminary Investigation Areas are suitable for urban development in accordance with the North Coast Regional Plan and North Coast Settlement Planning Guidelines. State Government approval will be required to include the investigation areas in local and regional land use strategies prior to consideration of any related planning proposals.

The qualification should appear wherever the Preliminary Investigation Areas are shown or discussed in the LSPS, including Figures 10, 17 and 19, and on pages 35 and 45. Figure 13 contains estimates of future dwelling numbers that should be removed from the LSPS until

Northern Region | 49 Victoria Street Grafton NSW 2460 | Locked Bag 9022 Grafton NSW 2460 | planning.nsw.gov.au the status of the investigation areas and outcomes of the Residential Strategy have been finalised.

Council may wish to omit the Preliminary Investigation Areas from the LSPS until State Government approval has been issued for the Byron Shire Residential Strategy.

Please note that North Coast Regional Plan Directions 14, 16-18, 20 and 24, which are relevant to the Liveable Shire chapter of the LSPS, have not been included in the line of sight diagram on p.30 of the LSPS.

There is also an opportunity to emphasise the precinct planning that is proposed to be undertaken by Council.

It is also recommended that Council include a summary of its planning in relation to rural residential development and the future of the Shire’s rural villages, subject to ongoing review of the Byron Shire Rural Land Use Strategy 2017.

A Thriving Shire The adopted Byron Shire Business and Industrial Lands Strategy (BILS) has been reviewed by the Department in conjunction with a review of the draft LSPS. Once again, Council is congratulated for its commitment to strategic planning for employment land uses.

A separate, qualified approval has been issued for the BILS, which includes endorsement for the planned industrial investigation areas at Billinudgel, , West and Mullumbimby, subject to more detailed investigations of local constraints at the planning proposal stage. These areas can be shown as ‘Industrial Investigation Areas’ in the LSPS.

The Department also supports the Direction in the BILS to enable business centres to retain an individual identity and fulfil their potential and the aim of the strategy to provide guidance on the development of key precincts, including development close to Byron Central Hospital. It is recommended that Council include an additional action in the BILS and LSPS to prepare a precinct plan for land around the Byron Central Hospital to inform the preparation and assessment of individual development proposals and ensure the long-term functionality of this key service precinct in the Byron Shire.

The Department supports further strategic planning by Council for the proposed Gulgan East, Gulgan West and Gulgan North areas to determine the suitability and appropriate extent of these areas for industry and business park development. This should include consideration of:

i. The agricultural potential of the sites and surrounding areas and the likely impact of development on regionally significant farmland; ii. Other major constraints, such as flooding and buffer requirements, that will determine the scope for potential development in the investigation areas; iii. The relationship to surrounding uses, such as the Tyagarah Airstrip; iv. The potential for agricultural ancillary development (i.e. food packaging, food production etc.); v. The potential impact of business park development on existing business centres; vi. Infrastructure requirements; vii. Funding arrangements; and viii. An appropriate land release program.

Northern Region | 49 Victoria Street Grafton NSW 2460 | Locked Bag 9022 Grafton NSW 2460 | planning.nsw.gov.au Until this work has been completed, the Department’s approval of the LSPS does not include endorsement of Gulgan East, Gulgan West and Gulgan North as an ‘Investigation Area’. Council should amend the current description of these areas as ‘Proposed investigation area’ in the LSPS (e.g. in figures 10, 17 and 19 of the LSPS), to show the status of these areas as ‘Preliminary Investigation Area’, and it should be clearly noted in the LSPS in conjunction with any commentary and mapping related to the Preliminary Investigation Areas that: The Preliminary Investigation Areas include land that is outside the Urban Growth Area in the North Coast Regional Plan. Council is undertaking preliminary strategic investigations to determine whether the Preliminary Investigation Areas are suitable for urban development in accordance with the North Coast Regional Plan and North Coast Settlement Planning Guidelines. State Government approval will be required to include the investigation areas in local and regional land use strategies prior to consideration of any related planning proposals.

Council may wish to omit the Preliminary Investigation Areas from the LSPS until further strategic planning has been completed for the proposed Gulgan East, Gulgan West and Gulgan North areas and State Government approval has been issued to amend the status of these areas in the BILS.

A Connected Shire The Department supports the proposed preparation of an Integrated Transport Management Strategy [ITMS] for the Byron Shire (Action CA4) and the investigation of rail corridor options (Action CA5), in consultation with relevant state agencies.

The proposed review and update of Section 7.11 Contributions Plans is also supported as part of a strategic approach to infrastructure planning for the ‘Preliminary Investigation Areas’.

Please note that the ‘Connected Community’ line of sight diagram on p.50 acknowledges Regional Plan Directions 10,15 and 21 but does not list Direction 9 – Strengthen regionally significant transport corridors. This is important as Council is proposing investigation areas adjacent to the Pacific .

Northern Region | 49 Victoria Street Grafton NSW 2460 | Locked Bag 9022 Grafton NSW 2460 | planning.nsw.gov.au From: Peter Cameron To: Caras, Alex Subject: Byron LSPS - Resilience Planning Date: Thursday, 7 May 2020 8:13:57 AM

Hi Alex,

I have been asked to pass on the following comments to you from the Resilience Planning team in relation to the Byron LSPS.

Byron LSPS

Regarding resilient places, the Byron LSPS does not provide sufficient resilient/recovery actions, and would benefit from the following notes:

· A detailed outline in the LSPS of the specific threats of climate change and natural hazards within the region, including climate projections, hazard mapping, scientific studies and, where data is absent, a history of events is recommended.

· A review of past bushfire and flood mapping is recommended.

· The LSPS would benefit from a broad view of hazard risk that is not limited to hazard type and exposure, and also identifies actual and potential community vulnerability.

· Actions that focus on resilience and recovery before and after a natural hazard event would help promote resilience-building within the LGA - this could be incorporated into Action SA8 of Sustainable Shire Priority 3.

· Considerations to managing future risk (climate and growth) so as to not to increase the population at risk and the demand on Emergency Services personnel and volunteers are recommended- this could be incorporated into Action SA8 of Sustainable Shire Priority 3.

· There should be an action to establish hazard planning and disaster resilience (including infrastructure resilience) principles as primary considerations in all development proposals. The development of a planning principle that local/regional hazard risk assessments inform land use planning decisions could be included.

· A review of development controls to encourage adaptable and resilient buildings is recommended.

· The LSPS would benefit from the promotion of risk reduction and avoidance strategies, particularly at a place-based level

· The LSPS should include more medium, long term and ongoing actions for resilience building into the future to ensure that resilience is managed and sustained.

If you need any clarification on the above comments, feel free to let me know. Happy to discuss further.

Thanks! Rachel Rachel Beard Graduate

Resilience Planning | Green and Resilient Places Place, Design and Public Spaces | Department of Planning, Industry and Environment T 9995 6393 | M 0432 521 023 | E [email protected] 4 Parramatta Square, 12 Darcy Street, Parramatta NSW

Peter Cameron Department of Planning Industry and Environment Local & Regional Planning (Northern Region) [email protected] Ph. 65885518 Mob. 0400818272

From: Regional Strategy To:

Subject: Byron Shire draft LSPS - TfNSW comments Date: Thursday, 7 May 2020 3:30:40 PM Attachments: image001.jpg LSPS and FT2056 v11a.pdf

Dear Kristie and Alex,

Thank you for your correspondence requesting Transport for NSW (TfNSW) to provide comments on the Draft Byron Shire Council Local Strategic Planning Statement (LSPS).

TfNSW understands that the LSPS for Byron Shire Council is required to be finalised by the 1 July 2020. The comments provided by TfNSW are for consideration for inclusion in the LSPS. TfNSW does not require the LSPS to be revised or amended to include our response. The comments provide the basis for future collaboration with Byron Shire on strategic planning matters to fulfil the relevant transport actions of the North Coast Regional Plan 2036 and to work with Council on strategic planning matters that have potential interaction or implications to the classified road network.

TfNSW is guided by our long term strategy Future Transport 2056. The Regional NSW Services and Infrastructure Plan is a supporting plan to Future Transport and sets a 40 year vision for transport in regional NSW to support liveable communities and productive economies. Future Transport identifies the North Coast for its’ diverse economy, tourism, manufacturing, services, technology industries and agribusiness. We also note Byron Bay’s significant contribution to tourism. A full list of initiatives from Future Transport 2056 is broken down by local government area (LGA) in the attached PDF.

Some other policy considerations include the NSW Freight and Ports Plan, the Heavy Vehicle Access Policy Framework and the NSW Road Safety Plan 2021.

TfNSW will prepare the North Coast Regional Transport Plan, a supporting plan as part of Future Transport 2056. This plan will identify initiatives and investigations to support walking, cycling, public transport, road and freight connectivity. Our vision for the North Coast will align and support the Department of Planning, Industry and Environment (DPIE)’s vision as identified in the North Coast Regional Plan 2036. We plan to align our timeframes with DPIE’s refresh of the North Coast Regional Plan. We can see that Byron Shire’s vision, themes and priorities identified in the LSPS are similar to the vision for the broader North Coast. In order to help you achieve your vision, we have provided some considerations from an integrated transport perspective.

A sustainable shire

We support Byron Shire’s priority to become a ‘Sustainable Shire’ and welcome the opportunity to collaborate and assist on sustainable transport projects to reach Council’s zero emissions target. There are opportunities to support this priority through the Walking and Cycling Program, electric vehicle projects and with on-demand and public transport. Council should also consider including actions relating to public transport in line with the Regional NSW Infrastructure and Services Plan. The provision of public transport can assist Council in achieving sustainable mode share as well as better connecting residents to the towns of Mullumbimby and Byron Bay. A liveable shire We support Council’s actions to provide diversified housing options to suit the difficult lifestyles and needs of the population. We suggest Council also consider including higher density housing within Byron Bay and Mullumbimby town centres which would provide additional housing options for residents and reduce the need to drive. By providing higher densities and ensuring walking and cycling connectivity, Council can reduce a number of unnecessary vehicle trips, increase economic benefits and vibrancy as well as provide better access to health, education and employment for those who are unable to drive. Studies also show that by rebalancing the focus from moving cars though streets to increasing pedestrian movements making them places where people want to dwell and spend time, there can be a positive impact on shop owners and the local economy more broadly.

We note that Council are currently working on Place Plans to drive long term visions to better support vibrant, safe and connected communities. We would be welcome for the opportunity to provide input or advice on these plans. We encourage Council to consider the Movement and Place Framework when planning for successful places within the Byron Shire. Guidance has been attached for your information and in addition to this guidance, welcome the opportunity to discuss this further with Council.

When investigating potential new residential areas, Council should avoid locating residential land uses near strategic freight networks and employment land. In particular, in line with Action 93 of the North Coast Regional Plan, Council should avoid development which directly adjoins to the Pacific Highway. Further, in the development of new release areas, to help achieve connected and sustainable communities, we encourage Council to require other developers to contribute to walking, cycling and active travel by connecting to Council’s existing pedestrian network and any future cycle paths. We also encourage Council through the development assessment process, to require higher trip generators like schools, hospitals, shopping centres, airport as well as higher density development to include end of trip facilities to make walking and cycling convenient for employees and customers.

A Thriving Shire TfNSW has developed the NSW Tourism and Transport Plan is a supporting plan of Future Transport and we welcome the opportunity to collaborate with Council on the Sustainable Visitation Strategy to guide how tourism is managed over the next 10 years. Council should consider an action related to protecting industrial zoned land from encroachment from incompatible land uses. We note that there are only a limited number of industrial zoned precincts and planned precincts in the LGA and these should be protected and able to grow and expand as required. Council should also consider an action related to protecting agricultural assets from land use conflicts, which would reflect earlier statements in the LSPS about protecting and enhancing productive agricultural lands and supporting the growth of agricultural being key priorities to Council.

A Connected Shire We note that Council are currently working an Integrated Transport Management Strategy to provide a clear direction on the transport network in the Shire over the next 20 years. We would be welcome for the opportunity to provide input or advice on these plans With Council’s proposed Multi-Use Rail Corridor (MURC), John Holland Rail (JHR), as the rail infrastructure manager, and TfNSW have no objections to the use of this Corridor however requests Council consult with JHR and TfNSW as key stakeholders the project. TfNSW will provide comment on the feasibility study once it is finalised and available for review. Should the LSPS be amended in the future to reflect changes as a result of the proposed multi-use rail corridor project, we request that Council refer the amended LSPS to TfNSW for further review.

Freight considerations We recommend Council consider following:

· A map which identifies and maps the freight network within the LGA, particularly routes of local and regional significance. The LSPS should also identify any constraints and proposed upgrades to the network.

· An action regarding working with TfNSW to consider the need and location of additional heavy vehicle rest areas along major freight corridors

· Local freight access to the town centres at Byron Bay and Mullumbimby needs to be considered. The efficient movement of freight requires a strategy that integrates it with the efficient movement of people, especially in and around town centres whilst protecting urban amenity and freight access

· An action related to protecting freight corridors such as the Pacific Highway from encroachment The ongoing upgrades to the Pacific Highway as a significant freight corridor have continued to provide opportunities for new and expanded freight facilities and distribution centres. From a strategic freight perspective there are a number of other considerations which could be included into the LSPS including:

· Identification of challenges related to tourism, such as dwellings being used for short-term rental accommodation impacting rental stock for long term residents. The LSPS could also identify the freight challenges of servicing the large number of tourists, as well as the Shire's population of 34,000 (see page 46)

· Identification of key freight routes (Pacific Highway) and ‘local and regional delivery links’ on Figure 17. Highlighting the corridors that provide movement of local freight connectivity between the highway and business centres / industrial could strengthen Council’s ability to apply for funding under Fixing Country Roads program (Page 50).

· Opportunities to ensure protection of industrial zoned land from encroachment from incompatible land uses. With only a limited number of industrial zoned precincts and planned precincts in the Shire, these should be protected and be able to grow and expand as required.

· Protect freight corridors such as the Pacific Highway from encroachment of other development. The freight network needs to be buffered from encroaching development, to allow freight activity to operate 24 hours a day, seven days a week.

Implementation, Monitoring and Reporting · The Connected Shire Planning Priorities table could include a priority related to road safety such as “Continue to seek grant funding from government programs to deliver road safety infrastructure improvements at identified high risk corridors and places.' For example, Byron Shire has secured in the immediate to short term around $14 million of road safety infrastructure project funding under the Safer Roads Program” (page 61).

· Under Funding and investment consider adding a note about applying for government grants to supplement council’s capital works program (page 63).

Finally, some general considerations include:

· Council are encouraged to consider how TfNSW owned land in the Byron Shire can support the place making outcomes, enhance transport outcomes and contribute to the economic development, employment and housing opportunities identified in the LSPS including through the preparation (and future implementation) of the Residential Housing Strategy and Business and Industrial Lands Strategy and the LEP review process

· Byron Shire hosts significant music festivals and attracts significant tourism and tourist developments, residential subdivisions and other urban development. Each has the potential to impact on the road network. Council and TfNSW are working together towards medium and longer term improvements to Ewingsdale Road and the surrounding road network and we encourage Council to continue to collaborate with TfNSW on this.

· We request that Council ensure new development does not result in negative impact to the network, particularly the Pacific Highway. We recommend that Council consider how new developments can be supported by walking, cycling and public transport connectivity. We would welcome the opportunity to provide advice on how Council can achieve this prior to the approval of a development.

We welcome the opportunity to work together on any initiatives mentioned above. If you have any questions or would like further information, please don’t hesitate to contact Elaine Luu, [email protected]

Elaine Luu Transport Planner Regional Strategy Customer Strategy & Technology Transport for NSW

M 0434 930 384 Level 26, 477 Pitt St, NSW 2000

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Local Strategic Planning in Regional NSW & Future Transport 2056

Introduction Regional NSW Services & Future Transport 2056 sets the Infrastructure Plan The Regional NSW Services & 40 year vision, directions and Infrastructure Plan expands the This Plan sets the customer outcomes framework for six Future Transport outcomes outcomes for Regional and Outer customer mobility in NSW, into the following ten customer Metropolitan NSW for the guiding transport investment. For outcomes specifically adapted for movement of people and freight regional NSW, the focus is on regional NSW: improving local connections and to meet customer needs and place with: deliver responsive, innovative services.  Ten regionally-specific The Plan Customer Outcomes articulates  Movement and Place hundreds of framework initiatives for investigation  Hub and Spoke network. in the short Future Transport 2056 is (0-10 years), supported by a range of medium (10- supporting plans, including the 20 years) and Regional NSW Services and long term (20 Infrastructure Plan, the NSW + years) to Freight and Ports Plan 2018- meet 2023 and Road Safety Plan customer 2021. Future Transport includes needs (see the ambitious long term goal for Attachment the safety of the network of a A). trauma-free transport network.

Customer outcomes Future Transport 2056’s transport vision for the next 40 years is articulated through six customer outcomes. These outcomes guide investment, policy, reform and service provision, as well as provide a framework for network planning and investment. They are aimed at harnessing rapid change and innovation to support a modern, innovative transport system.

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18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

Movement and Place Hub and Spoke Whilst connectivity to The ‘Movement and Place’ The most effective way of providing better Sydney remains Framework acknowledges transport to more customers in regional NSW important, safe and that the needs and is through the development of a ‘hub and efficient links to regional expectations of customers spoke’ network model radiating out from cities in adjacent regions regional centres rather than a network just change as the road function is considered just as focused on Sydney. changes, and aims to better important. balance these functions. The ‘hub and spoke’ network will be developed The Framework adopts the collaboratively with key position that the NSW road stakeholders to inform network services the preparation of Regional following two primary Transport Plans and Place-based Transport functions: Plans.  Movement for people and goods; and This will capitalise on the role that regional  Places for people. centres and cities play as hubs for employment and services such as retail, health, education and cultural activities for their surrounding catchment areas. It also acknowledges the importance of national and state significant transport links (spokes) that pass through regions.

The Framework seeks to achieve two main outcomes: 1. road space allocation that enhances the safety and efficiency of movement to support Great and Successful Places; and 2. street environments that support streets as destinations that people want to spend time in.

Together these outcomes should be the focus of strategic planning, design, management, operation and performance measurement of streets.

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Local Strategic Planning in Regional NSW Future Transport 2056

 Liveable and Safe Urban Communities NSW Freight and Ports Plan  Using the Roads Safely 2018-2023  Building a Safer Community This Plan sets the NSW Culture New and Proven Vehicle Government’s priorities for the  Technology sector over the next five years to  Building a Safe Future support the growing freight task. Everyone plays a role in The Plan includes 117 initiatives delivering the Road Safety Plan focused on achieving five key 2021 actions and goals. As part objectives: of Local Strategic Planning,

 Economic growth Local Government can consider  Efficiency, connectivity and The Plan adopts the Safe how they will improve road safety in their local government access System approach which area.  Capacity recognises that people do make

 Safety mistakes and aims to ensure that  Sustainability when a crash occurs, the energy Regional Transport Plans The Plan identifies key issues levels transmitted are below what and Place Plans that NSW Government agencies, would cause a fatal or serious A number of detailed issues-based the Australian Government and injury. and place-based transport local councils need to consider planning strategies are being and incorporate into land use and The approach is underpinned by developed to support the infrastructure planning. the following principles:  The human body has implementation of Future Road Safety Plan 2021 physical limits to Transport 2056 across NSW. While the rural population makes withstanding the impact of a Regional Transport Plans are up only one third of the NSW crash being developed for each of population, two thirds of all  People sometimes make Regional NSW’s nine planning fatalities occur on country roads, mistakes – but this regions building on the high-level and more than 70 per cent of fatal shouldn’t cost anyone their content in the Regional NSW crashes on country roads involve life Services & Infrastructure Plan country residents.  Roads, roadsides, travel and initiatives identified through speeds and vehicles need the LSPS process. The Road Safety Plan 2021 to be designed to help avoid features targeted and proven The nine regions, identified by the a crash or reduce the initiatives that will help NSW Department of Planning, Industry impact of a crash if it and Environment (DPIE) in their progress towards reducing road happens fatalities and serious injuries by at Regional Plans, are supported by  Road safety is a shared least 30 per cent (from 2008-2010 key regional cities and centres. responsibility. We all need levels) by 2021 and zero road The regional cities will have a to make decisions with trauma by 2056. supporting Place-based safety in mind, from the Transport Plan developed in design of our roads and partnership with Local vehicles, investments, laws Government. Place Plans may and education, to each road also be delivered for a number of user acting safely every smaller centres in regional NSW day. or led by Local Government with The Plan has six priority areas the support of Transport for to drive the reduction: NSW.  Saving Lives on Country

Roads

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Local Strategic Planning in Regional NSW Future Transport 2056

Supporting local planning Toolkit and other resources  Balancing the needs of the https://www.governmentarchi freight industry and their The Local Strategic Planning tect.nsw.gov.au/ customers with local Statement (LSPS) offers Local communities by ensuring Government an opportunity to  Support the development of non-freight land uses are consider what this means for Place-based Transport Plans designed and constructed both identified regional hubs  Provide advice on Draft with appropriate mitigation where employment and LSPS to include integrated measures to deal with issues services are often concentrated transport and land use such as noise and traffic and how better connections advice impacts, including buffer (spokes) to these hubs can zones. support neighbouring smaller  Assist with finding centres and towns. Example appropriate TfNSW contacts Further guidance on planning statements are shown below. for your community for freight is available in the NSW Freight and Ports Plan Transport for NSW can also transport, bus servicing 2018-2023 (p.66-69). offer a range of resources to related questions etc.

help Council’s inform their Local planning for Freight respective LSPS. Examples Local planning for road The LSPS also offers Local include: safety Government an opportunity to  Data – The Open Data Hub plan for current and future The LSPS offers Local provides transport data freight and logistics Government an opportunity to including Opal data, freight requirements within their Local consider road safety impacts data, Household Travel Government Area (LGA) by: and needs. Survey information and on  Identifying existing freight To help Councils consider road demand trial data. Visit: corridors and networks safety as part of their overall https://opendata.transport.ns (particularly regional and planning, Transport for NSW w.gov.au/ The Transport for local) and significant freight has partnered with the Institute NSW Centre for Road Safety land uses (such as of Public works Engineering Provides crash data to local intermodal terminals and Australia NSW (IPWEA) to government to support their grain receival sites that have update ‘A Guide to Developing understanding of and developed as a result of Council Road Safety Strategic Plans’ (Guide). It is designed to responses to local road significant private investment) assist Councils to develop road safety issues. Visit: safety strategic plans and https://roadsafety.transport.n  Considering future freight integrate them into the IPRF. sw.gov.au/statistics/index.ht requirements, including new The Guide is based on ‘best land uses, expansion or ml practice’ methodology increased intensity of  Discuss and/or meet to apply developed through systematic existing corridors and land the Movement and Place investigation, consultation and uses and ensuring efficient Framework to a local context feedback on the experiences of connections and introduce the a number of NSW Councils. Government Architect NSW

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Local Strategic Planning in Regional NSW Future Transport 2056

Examples of LSPS actions are:

 Council will work with TfNSW and other key stakeholders on implementing the Movement and Place Framework through the development of a Place Plan, integrated transport and land use plan, for key centres and/or the LGA.  Council will work with TfNSW in the development and implementation of travel demand management policies and actions.  Council will work with TfNSW to understand catchment areas for key centres and attractors (such as retail, hospitals, airports, universities etc) to develop a hub and spoke transport network.  Council will work with TfNSW to promote active transport, including opportunities to develop an active transport network.  Council will work with TfNSW to adopt the Safe System approach when addressing identified areas of high crash risk on the local road network or key crash trends within their LGA.  Council will work with TfNSW in developing car parking guidelines to support the development and vibrancy of centres and encourage a more sustainable mode share.  Council will avoid the encroachment of incompatible land uses on major transport corridors within the LGA.  Council will work with TfNSW to identify current and future freight and logistics requirements.  Council to secure corridor protection for future transport alignments when routes are identified by TfNSW. When preparing LSPS actions, be specific to the Local Government Area (LGA) and provide relevant timeframes.

Contact For further information or assistance, please contact [email protected]

Attachment A: Regional NSW Services and Infrastructure Plan initiatives by Local Government Area

Attachment B: Regional NSW Services and Infrastructure Plan statewide initiatives

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Local Strategic Planning in Regional NSW Future Transport 2056

Attachment A:

Initiatives by Local Government Area

LGA Initiatives

Hunter  Hunter Pinch Points  Greater Newcastle Place Plans  Hunter Regional Transport Plan  Bus headstart for Greater Newcastle Cessnock  Greater Newcastle Rapid Bus Package  to Newcastle rail connection  Outer Metro Roads Program  Cessnock to Newcastle rail services via Kurri Kurri  Hunter Pinch Points Dungog  Hunter Regional Transport Plan  Outer Metro Roads Program  New Intercity Fleet (Multi-region)  Hunter Pinch Points  Sydney-Central Coast-Newcastle Faster Rail Improvement  Greater Newcastle Place Plans  Hunter Regional Transport Plan Lake Macquarie  Bus headstart for Greater Newcastle  Greater Newcastle Rapid Bus Package  Outer Metro Roads Program  Corridor Preservation for Higher Speed Connections  New suburban type rail service for Greater Newcastle  Higher Speed Connections (east coast)  Hunter Pinch Points  Greater Newcastle Place Plans  Bus headstart for Greater Newcastle  Greater Newcastle Rapid Bus Package  Maitland Place Plan Maitland  Hunter Regional Transport Plan  Outer Metro Roads Program  Dubbo to Newcastle rail connection  Main Northern Line - improvements to address pinch points  Electrification of the Hunter Line to Telarah  Cessnock to Newcastle rail services via Kurri Kurri  Hunter Pinch Points  Taree Northern Gateway upgrades and Mid-Coast  The Lakes Way Corridor Improvements  Cedar Party Creek Bridge, Wingham

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Local Strategic Planning in Regional NSW Future Transport 2056

 Hunter Regional Transport Plan  Outer Metro Roads Program  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  , Muswellbrook Bypass (Planning)  Safety and Productivity Works (State and Federal Funded)  Hunter Pinch Points  Golden Highway improvements (continuation) Muswellbrook  Hunter Regional Transport Plan  Outer Metro Roads Program  Main Northern Line - improvements to address pinch points  Dubbo to Newcastle rail connection  Duplication of New England Highway Muswellbrook to Scone  New Intercity Fleet (Multi-region)  Nelson Bay Road improvements – Fern Bay to Williamtown  Newcastle Cruise Terminal  Hunter Pinch Points  Newcastle Inner City Bypass, Rankin Park to Jesmond  M1, Hexham, Raymond Terrace upgrades  Lower Hunter Freight Corridor Protection  Improvements to Newcastle Port  Bus headstart for Greater Newcastle  Greater Newcastle Rapid Bus Package  Newcastle Light Rail network extension  M1, Hexham, Raymond Terrace upgrades Newcastle  Greater Newcastle Place Plans  Hunter Regional Transport Plan  Sydney-Central Coast-Newcastle Faster Rail Improvement  Outer Metro Roads Program  Newcastle Ferry Network extension  Lower Hunter Freight Corridor  Corridor Preservation for Higher Speed Connections  Dubbo to Newcastle rail connection  Electrification of the Hunter Line to Telarah  New suburban type rail service for Greater Newcastle  Cessnock to Newcastle rail services via Kurri Kurri  Higher Speed Connections (east coast)  Nelson Bay Road improvements – Fern Bay to Williamtown  Nelson Bay Road improvements - Williamtown to Bobs Farm  M1, Hexham, Raymond Terrace upgrades  Hunter Pinch Points  Greater Newcastle Place Plans  Hunter Regional Transport Plan  Bus headstart for Greater Newcastle  Greater Newcastle Rapid Bus Package Port Stephens  M1, Hexham, Raymond Terrace upgrades  Fingal Bay Link Road construction  Williamtown Special Activation Precinct  Outer Metro Roads Program  Tomago Road Improvements - Pacific Highway to Williamtown  Corridor Preservation for Higher Speed Connections  New rail alignment of North Coast Line between Newcastle and Stroud Road - investigation corridor  Higher Speed Connections (east coast)

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Local Strategic Planning in Regional NSW Future Transport 2056

 New England Highway, Gowrie Gates, Widen Rail Underpass  New England Highway, Belford to Golden Highway Upgrade  New England Highway, Singleton Bypass (Planning)  Golden Highway Safety and Productivity Works (State and Federal Funded)  Hunter Pinch Points Singleton  New Singleton rail services  Golden Highway improvements (continuation)  Hunter Regional Transport Plan  Outer Metro Roads Program  Main Northern Line - improvements to address pinch points  Dubbo to Newcastle rail connection  New England Highway, Scone Bypass (State and Federal Funded)  Golden Highway Safety and Productivity Works (State and Federal Funded)  Hunter Pinch Points Upper Hunter Shire  Golden Highway improvements (continuation)  Hunter Regional Transport Plan  Outer Metro Roads Program  Main Northern Line - improvements to address pinch points  Dubbo to Newcastle rail connection  Duplication of New England Highway Muswellbrook to Scone Central Coast  Regional growth buses  Warnervale Link Road, Albert Drive to Pacific Highway (planning)  Pacific Highway, Wyong Town Centre (planning)  Pacific Motorway Widening and Reconstruction, Wyong Road to Doyalson Link Road (State and Federal funded)  Empire Bay Drive, The Scenic Road and Cochrone Street Intersection upgrade  Kangy Angy Train Maintenance Facility for New Intercity FleetPacific Highway, Parsons Road to Ourimbah Street (Planning)  Manns Road, to Narara Creek Road (Planning)  Pacific Motorway Widening, Kariong to Somersby Interchange (State to Federal Funded)  New Intercity Fleet Central Coast  Sydney-Central Coast-Newcastle Faster Rail Improvement  Bus Headstart for Central Coast  Central Coast Rapid Bus package  Central Coast Place Plans  M1 Motorway improvements (Hawkesbury River – Mt White)  Place Plan  Central Coast Regional Transport Plan  Outer Metro Roads Program  M1-Newcastle SMART Motorway  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  from to Central Coast

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Local Strategic Planning in Regional NSW Future Transport 2056

Illawarra-Shoalhaven  New Intercity Fleet (Multi-region)  Rail passing loop between Gerringong and Berry  More Trains More Services (Stage 2) Kiama  Illawarra-Shoalhaven Regional Transport Plan  Electrification of intercity to Bomaderry/Nowra  Outer Metro Roads Program  New Intercity Fleet (Multi-region)  Albion Park Rail Bypass (Planning and Preconstruction)  More Trains More Services (Stage 2) Shellharbour  Shellharbour Place Plan  Illawarra-Shoalhaven Regional Transport Plan  Illawarra Hwy/Macquarie Pass improvements  Outer Metro Roads Program  Regional growth buses  Rail passing loop between Gerringong and Berry  over (Planning) (State and Federal Funded) subject to final business case and Federal funding  MR92 Nerriga Road improvements  Berry to Bomaderry Upgrade  More Trains More Services (Stage 2)  Upgrade Program (between Jervis Bay Road and Sussex Inlet Road) Shoalhaven  Princes Highway Upgrade Program (planning of Milton and Ulladulla Bypass)  Princes Highway Upgrade Program (planning for upgrades from Burrill Lake to Batemans Bay)  Princes Highway Nowra Bridge replacement  Duplication of Princes Highway (Jervis Bay Road Intersection to Moruya)  Nowra Place Plan  Illawarra-Shoalhaven Regional Transport Plan  Electrification of intercity to Bomaderry/Nowra  Outer Metro Roads Program  Illawarra Growth Buses  New Intercity Fleet (Multi-region)  Improvements, Bulli Tops to Picton Road (Planning) (State and Federal Funded)  Princes Motorway, Interchange at Base of Mount Ousley (Planning)  Sydney-Wollongong Faster Rail Improvement  Wollongong Rapid Bus package  Wollongong Place Plan Wollongong  Illawarra-Shoalhaven Regional Transport Plan  Bus headstart for Wollongong  Bus priority measures on  Picton Rd/Appin Rd Improvements  Moss Vale to Unanderra and Coniston Junction rail improvements  M1 Princes SMART Motorway  Completion of Maldon to Dombarton railway line  Outer Metro Roads Program  Illawarra Escarpment long term solution  Outer Sydney Orbital from Hume Motorway to Illawarra

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Local Strategic Planning in Regional NSW Future Transport 2056

North Coast  Woolgoolga to Ballina Pacific Highway upgrade (State and Federal Funded) Ballina  upgrades at Alstonville  Bruxner Highway Improvements (Ballina-Casino)  North Coast Regional Transport Plan  Woolgoolga to Ballina Pacific Highway upgrade (State and Federal Funded)  Upgrade through Dorrigo and Bellingen Bellingen  Waterfall Way corridor improvements  North Coast Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Upgrade of Bangalow Road between Bangalow and Lismore Byron  North Coast Regional Transport Plan  Woolgoolga to Ballina Pacific Highway Upgrade (State and Federal Funded)  , Additional Clarence River Crossing (Grafton Bridge)  Regional growth buses - planning  Waterfall Way corridor improvements Clarence Valley  Improvements (between Grafton and Glen Innes, Jackadgery)  North Coast Regional Transport Plan  Summerland Way Improvements (Grafton-QLD border)  Corridor Preservation for Higher Speed Connections  North Coast cruise infrastructure development  Higher Speed Connections (east coast)  Woolgoolga to Ballina (State and Federal Funded)  Coffs Harbour Recreational Boa Ramp  Regional growth buses  Coffs Harbour Place Plan Coffs Harbour  Coffs Harbour Bypass  North Coast Regional Transport Plan  North Coast cruise infrastructure development  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  North Coast Regional Transport Plan Kempsey  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  North Coast Regional Transport Plan  Summerland Way Improvements (Grafton-QLD border)  Bruxner Highway Improvements (Casino-Tenterfield)  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Bruxner Highway upgrades in Lismore  Regional growth buses  Upgrade of Bangalow Road between Bangalow and Lismore Lismore  Bruxner Highway Improvements (Ballina-Casino)  Lismore Place Plan  North Coast Regional Transport Plan  Warrell Creek to Nambucca Heads Pacific Highway upgrade Nambucca (State and Federal Funded) (open to traffic in 2017)  North Coast Regional Transport Plan

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Local Strategic Planning in Regional NSW Future Transport 2056

 Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Regional growth buses - planning  Ocean Drive duplication, Port Macquarie  Port Macquarie Place Plan Port Macquarie-Hastings  North Coast Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Woolgoolga to Ballina Pacific Highway upgrade (State and Federal Funded)  Bruxner Highway Improvements (Ballina-Casino)  North Coast Regional Transport Plan Richmond Valley  Summerland Way Improvements (Grafton-QLD border)  Bruxner Highway Improvements (Casino-Tenterfield)  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Regional growth buses  Tweed Light Rail Tweed  Tweed Transport Network Plan (encompassing the potential for light rail extension from Gold Coast Airport to Tweed Heads)  Tweed Heads and Gold Coast Place Plan  North Coast Regional Transport Plan South East and Tablelands  Eden cruise facilities development  Highway improvements (including Brown Mountain) Bega Valley Shire  South East and Tablelands Regional Transport Plan  Duplication of Princes Highway (Moruya to Bega Bridge)  Duplication of Princes Highway (Bega to Victoria)  Batemans Bay Bridge (planning)  Kings Highway, Replacement Clyde River Bridge  Princes Highway Upgrade Program – Moruya Bypass  Princes Highway Upgrade Program (planning for upgrades from Burrill Lake to Batemans Bay) Eurobodalla  Kings Highway improvements  Duplication of Princes Highway (Jervis Bay Road Intersection to Moruya)  South East and Tablelands Regional Transport Plan  Duplication of Princes Highway (Moruya to Bega Bridge)  Public Transport for isolated communities  Heavy Duty Pavement (State and Federal Funded)  Sydney-Canberra Faster Rail Improvement Goulburn Mulwaree  Hume Highway Improvements  South East and Tablelands Regional Transport Plan  Preservation for Higher Speed Connections  Electrification of intercity to Goulburn  Higher Speed Connections (east coast)  Public Transport for isolated communities  Hume Highway Heavy Duty Pavement (State and Federal Funded) Hilltops  improvements  Hume Highway Improvements  South East and Tablelands Regional Transport Plan

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Local Strategic Planning in Regional NSW Future Transport 2056

 Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Queanbeyan Bypass (Ellerton Drive Extension) (State, Federal and Local Government Funded)  MR92 Nerriga Road improvements  Regional growth buses  Kings Highway improvements Queanbeyan-Palerang  Dunns Creek Road corridor acquisition and design Regional  Sydney-Canberra Faster Rail Improvement  Investigate extension of light rail from Canberra to Queanbeyan  Queanbeyan Place Plan  South East and Tablelands Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Public Transport for isolated communities  Overtaking Lanes and Safety Improvements  Overtaking Lanes and Safety Improvements  Monaro Highway improvements Snowy Monaro Regional  Sealing Bobeyan Road, Bolaro  improvements (including Brown Mountain)  South East and Tablelands Regional Transport Plan  Public Transport for isolated communities  Hume Highway Heavy Duty Pavement (State and Federal Funded) Upper Lachlan Shire  Hume Highway Improvements  South East and Tablelands Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Higher Speed Connections (east coast)  Hume Highway Heavy Duty Pavement (State and Federal Funded)  Moss Vale to Unanderra and Coniston Junction rail improvements  Sydney-Canberra Faster Rail Improvement  Hume Highway Improvements Wingecarribee  South East and Tablelands Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Illawarra Hwy/Macquarie Pass improvements  M31 Hume SMART motorway  Electrification of intercity to Goulburn  Higher Speed Connections (east coast)  Improvements (State and Federal Funded)  Hume Highway Heavy Duty Pavement (State and Federal Funded)  Lachlan Valley Way improvements Yass Valley  Hume Highway Improvements  South East and Tablelands Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Completion of Barton Highway duplication  Higher Speed Connections (east coast) Riverina Murray  Hume Highway Heavy Duty Pavement (State and Federal Funded) Albury  Inland Rail (Federal Funded)  Regional growth buses

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Local Strategic Planning in Regional NSW Future Transport 2056

 Hume Highway Improvements  Main South Freight Rail Capacity Enhancements in collaboration with ARTC  Murray River Bridges Program  Albury Wodonga Place Plan  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Support the delivery of Inland Rail  Higher Speed Connections (east coast)  Overtaking Lanes (Multi-region)  Newell Highway Improvements (in addition to those committed) Berrigan  Murray River Bridges Program  Riverina Murray Regional Transport Plan  Newell Highway Overtaking Lanes (Multi-region)  Newell Highway flood-proof Bland  Newell Highway Improvements (in addition to those committed)  Riverina Murray Regional Transport Plan  Seal Extension  improvements Carrathool  Cobb Highway sealing missing links  Riverina Murray Regional Transport Plan  Newell Highway Overtaking Lanes (Multi-region) Coolamon  Newell Highway Improvements (in addition to those committed)  Riverina Murray Regional Transport Plan  Hume Highway Heavy Duty Pavement (State and Federal Funded)  Inland Rail (Federal Funded) Cootamundra-Gundagai  Hume Highway Improvements Regional  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Support the delivery of Inland Rail  Higher Speed Connections (east coast)  Public Transport for isolated communities  Cobb Highway Seal Extension Edward River  Cobb Highway sealing missing links  Riverina Murray Regional Transport Plan  Newell Highway Overtaking Lanes (Multi-region)  Newell Highway Improvements (in addition to those committed) Federation  Murray River Bridges Program  Riverina Murray Regional Transport Plan  Hume Highway Heavy Duty Pavement (State and Federal Funded)  Inland Rail (Federal Funded)  Hume Highway Improvements  Main South Freight Rail Capacity Enhancements in collaboration Greater Hume Shire with ARTC  Murray River Bridges Program  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Support the delivery of Inland Rail  Higher Speed Connections (east coast)  Regional growth buses  Kidman Way improvements Griffith  Griffith Place Plan  Riverina Murray Regional Transport Plan

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 13 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Cobb Highway Seal Extension  Hay, Main Street upgrade (resurfacing) Hay  Cobb Highway sealing missing links  improvements  Riverina Murray Regional Transport Plan  Cobb Highway Seal Extension  Inland Rail (Federal Funded)  Main South Freight Rail Capacity Enhancements in collaboration with ARTC Junee  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Support the delivery of Inland Rail  Higher Speed Connections (east coast)  Sturt Highway improvements Leeton  Riverina Murray Regional Transport Plan  Inland Rail (Federal Funded)  Main South Freight Rail Capacity Enhancements in collaboration with ARTC Lockhart  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections  Support the delivery of Inland Rail  Higher Speed Connections (east coast)  Cobb Highway, New Bridge at Echuca - Moama  Cobb Highway Seal Extension  Cobb Highway sealing missing links Murray River  Sturt Highway improvements  Murray River Bridges Program  Riverina Murray Regional Transport Plan  Newell Highway Overtaking Lanes (Multi-region)  Newell Highway Improvements (in addition to those committed) Murrumbidgee  Kidman Way improvements  Sturt Highway improvements  Riverina Murray Regional Transport Plan  Newell Highway Overtaking Lanes (Multi-region)  Newell Highway Improvements (in addition to those committed) Narrandera  Sturt Highway improvements  Riverina Murray Regional Transport Plan  Public Transport for isolated communities  Gocup Road Upgrade Snowy Valleys  Murray River Bridges Program  Riverina Murray Regional Transport Plan Temora  Riverina Murray Regional Transport Plan  Hume Highway Heavy Duty Pavement (State and Federal Funded)  Inland Rail (Federal Funded)  Regional growth buses  Inland Rail Intermodal Facility investigations  Hume Highway Improvements Wagga Wagga  Main South Freight Rail Capacity Enhancements in collaboration with ARTC  Sturt Highway improvements  Wagga Wagga Place Plan  Riverina Murray Regional Transport Plan  Corridor Preservation for Higher Speed Connections

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 14 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Support the delivery of Inland Rail  Higher Speed Connections (east coast) New England North West  Public Transport for isolated communities  Regional growth buses - planning  Waterfall Way corridor improvements Armidale Regional  New England Highway Improvements (Armidale to border)  New England Highway Improvements (Willow Tree to Armidale)  Armidale Place Plan  New England North West Regional Transport Plan  Main Northern Line - improvements to address pinch points  New England Highway Improvements (Armidale to border)  Gwydir Highway Improvements (between Grafton and Glen Innes, Glen Innes Severn Jackadgery)  New England North West Regional Transport Plan  Gwydir Highway Improvements (Inland)  Public Transport for isolated communities  , Bridge over Rail Gunnedah  Improvements  New England North West Regional Transport Plan  Public Transport for isolated communities  Inland Rail (Federal Funded) Gwydir  New England North West Regional Transport Plan  Gwydir Highway Improvements (Inland)  Support the delivery of Inland Rail  Public Transport for isolated communities  Inland Rail (Federal Funded)  New England North West Regional Transport Plan  Gwydir Highway Improvements (Inland)  Support the delivery of Inland Rail  Public Transport for isolated communities  New England Highway Improvements (Willow Tree to Armidale) Liverpool Plains  Kamilaroi Highway Improvements  New England North West Regional Transport Plan  Main Northern Line - improvements to address pinch points  Public Transport for isolated communities  Newell Highway, Mungle Back Creek to Heavy Duty Pavement (State and Federal Funded)  Newell Highway Overtaking Lanes (Multi-region)  Newell Highway Heavy Vehicle Pavement Upgrades - - Moree, North of Moree (Planning)  Inland Rail (Federal Funded) Moree Plains  Gwydir Highway washpool causeway  Gwydir Highway Improvements (between Grafton and Glen Innes, Jackadgery)  Inland Rail Intermodal Facility investigations  Newell Highway Improvements (in addition to those committed)  New England North West Regional Transport Plan  Gwydir Highway Improvements (Inland)  Support the delivery of Inland Rail  Newell Highway Overtaking Lanes (Multi-region) Narrabri  Newell Highway Heavy Vehicle Pavement Upgrades - Narrabri- Moree, North of Moree (Planning)

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 15 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Inland Rail (Federal Funded)  Newell Highway Improvements (in addition to those committed)  Kamilaroi Highway Improvements  New England North West Regional Transport Plan  Support the delivery of Inland Rail  Public Transport for isolated communities  Barraba Branch Line  Tamworth Rail Freight Centre  Upgrade of Goonoo Goonoo Road  New England Highway duplication from Calala Lane to Jack Smyth Road, Tamworth Tamworth Regional  Regional growth buses - planning  Oxley Highway Improvements  New England Highway Improvements (Willow Tree to Armidale)  Tamworth Place Plan  New England North West Regional Transport Plan  Main Northern Line - improvements to address pinch points  New England Highway, Bolivia Hill Upgrade (State and Federal Funded) Tenterfield  New England Highway Improvements (Armidale to border)  New England North West Regional Transport Plan  New England Highway Improvements (Willow Tree to Armidale) Uralla  New England North West Regional Transport Plan  Main Northern Line - improvements to address pinch points  New England North West Regional Transport Plan Walcha  Main Northern Line - improvements to address pinch points Central West and Orana  Public Transport for isolated communities  Upgrades to Main West Line  Regional growth buses  Main Road 54 (Goulburn to Bathurst) Initial Sealing  Mt Victoria to Orange road corridor improvements to achieve Bathurst Regional travel time savings and road safety outcomes  Bathurst Place Plan  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Electrification of intercity to Bathurst  improvements  Upgrades to Main West Line  Extending Bathurst commuter rail to Orange Blayney  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  improvements (Dubbo-)  Central West and Orana Regional Transport Plan Bogan  Connecting the Central West and Orana Program  Mitchell Highway improvements  Upgrades to Main West Line  Mt Victoria to Orange road corridor improvements to achieve travel time savings and road safety outcomes Cabonne  Henry Parkes Way improvements  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Mitchell Highway improvements

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 16 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Inland Rail (Federal Funded)  Upgrade roads in the and Warrumbungle area Coonamble  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Support the delivery of Inland Rail  Public Transport for isolated communities  Lachlan Valley Way improvements Cowra  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Public Transport for isolated communities  Newell Highway, New Dubbo Bridge (Planning)  Newell Highway Overtaking Lanes (Multi-region)  Golden Highway Safety and Productivity Works (State and Federal Funded)  Regional Rail Maintenance Facility (Dubbo subject to planning approval)  Regional growth buses Dubbo Regional  Mitchell Highway overtaking lakes- Dubbo to Narromine  Golden Highway improvements (continuation)  Newell Highway Improvements (in addition to those committed)  Barrier Highway improvements (Dubbo-Broken Hill)  Dubbo Place Plan  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Dubbo to Newcastle rail connection  Mitchell Highway improvements  Newell Highway Overtaking Lanes (Multi-region)  Upgrades to Main West Line  Inland Rail (Federal Funded)  Newell Highway flood-proof Forbes  Newell Highway Improvements (in addition to those committed)  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Support the delivery of Inland Rail  Newell Highway Overtaking Lanes (Multi-region)  Inland Rail (Federal Funded)  Newell Highway Improvements (in addition to those committed) Gilgandra  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Support the delivery of Inland Rail  Henry Parkes Way improvements Lachlan  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  New Intercity Fleet (Multi-region)  Upgrades to Main West Line  New Bathurst Bullet service  improvements  Mt Victoria to Orange road corridor improvements to achieve Lithgow travel time savings and road safety outcomes  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Electrification of intercity to Bathurst  Improvements (Mudgee-Lithgow)  Public Transport for isolated communities Mid-Western Regional  Central West and Orana Regional Transport Plan

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 17 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Connecting the Central West and Orana Program  Dubbo to Newcastle rail connection  Castlereagh Highway Improvements (Mudgee-Lithgow)  Newell Highway Overtaking Lanes (Multi-region)  Inland Rail (Federal Funded)  Mitchell Highway overtaking lanes – Dubbo to Narromine  Inland Rail Intermodal Facility investigations  Newell Highway Improvements (in addition to those committed) Narromine  Barrier Highway improvements (Dubbo-Broken Hill)  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Support the delivery of Inland Rail  Mitchell Highway improvements  Central West and Orana Regional Transport Plan Oberon  Connecting the Central West and Orana Program  Upgrades to Main West Line  Regional growth buses  Mt Victoria to Orange road corridor improvements to achieve travel time savings and road safety outcomes Orange  Extending Bathurst commuter rail to Orange  Orange Place Plan  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Mitchell Highway improvements  Newell Highway, Parkes Bypass (Planning)  Newell Highway Overtaking Lanes (Multi-region)  Upgrades to Main West Line  Inland Rail (Federal Funded) Parkes  Henry Parkes Way improvements  Newell Highway Improvements (in addition to those committed)  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Support the delivery of Inland Rail  Barrier Highway improvements (Dubbo-Broken Hill)  Central West and Orana Regional Transport Plan Warren  Connecting the Central West and Orana Program  Mitchell Highway improvements  Newell Highway, Improvements through (Planning)  Newell Highway Overtaking Lanes (Multi-region)  Golden Highway Safety and Productivity Works (State and Federal Funded)  Inland Rail (Federal Funded) Warrumbungle Shire  Golden Highway improvements (continuation)  Newell Highway Improvements (in addition to those committed)  Upgrade roads in the Coonamble and Warrumbungle area  Central West and Orana Regional Transport Plan  Connecting the Central West and Orana Program  Dubbo to Newcastle rail connection  Support the delivery of Inland Rail  Newell Highway Overtaking Lanes (Multi-region)  Inland Rail (Federal Funded) Weddin  Newell Highway flood-proof  Newell Highway Improvements (in addition to those committed)  Central West and Orana Regional Transport Plan

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 18 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

 Connecting the Central West and Orana Program  Support the delivery of Inland Rail Far West  Sturt Highway improvements  Murray River Bridges Program Balranald  The Wool Track sealing (Balranald - Ivanhoe -)  Far West Regional Transport Plan  Kamilaroi Highway Improvements  Kidman Way improvements Bourke  Far West Regional Transport Plan  Mitchell Highway improvements  Public Transport for isolated communities Brewarrina  Kamilaroi Highway Improvements  Far West Regional Transport Plan  Seal Extension  Silver City Highway sealing missing links Broken Hill  Barrier Highway improvements (Dubbo-Broken Hill)  Broken Hill Place Plan  Far West Regional Transport Plan  Cobb Highway Seal Extension  Cobb Highway sealing missing links Central Darling  Barrier Highway improvements (Dubbo-Broken Hill)  The Wool Track sealing (Balranald - Ivanhoe -Cobar)  Far West Regional Transport Plan  Kidman Way improvements  Barrier Highway improvements (Dubbo-Broken Hill) Cobar  The Wool Track sealing (Balranald - Ivanhoe -Cobar)  Far West Regional Transport Plan  Silver City Highway Seal Extension  Silver City Highway sealing missing links Unincorporated Area  Barrier Highway improvements (Dubbo-Broken Hill)  Far West Regional Transport Plan  Public Transport for isolated communities Walgett  Kamilaroi Highway Improvements  Far West Regional Transport Plan  Silver City Highway Seal Extension  Silver City Highway sealing missing links Wentworth  Sturt Highway improvements  Murray River Bridges Program  Far West Regional Transport Plan

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 19 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

Attachment B:

Regional NSW Services and Infrastructure Plan Statewide initiatives

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 20 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 21 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Local Strategic Planning in Regional NSW Future Transport 2056

Transport for NSW Tel: 8202 2200 Fax: 8202 2209 Page 22 of 22 18 Lee Street, Chippendale NSW 2008 | PO Box K659, Haymarket NSW 1240

Our ref: AA/VG: 6/19 (122877) (53352) Your Ref: #E2020/24022

8 May 2020

General Manager Byron Shire Council PO Box 219 MULLUMBIMBY NSW 2482

Attention: Mr Alex Caras, Land Use Planning Coordinator Email: [email protected] (cc: [email protected])

Dear Sir

Public Exhibition of Local Strategic Planning Statement

Introduction Thank you for your letter dated 1 April 2020 providing Rous County Council (RCC) with the opportunity to comment on the Draft Byron Shire Local Strategic Planning Statement (LSPS).

RCC is committed to providing high quality drinking water to the region and is concerned to ensure that all forms of development minimises the risk posed to the public water supply at every point in the decision making process. In your correspondence, you have invited RCC to provide comment on the draft LSPS.

Context As indicated in your letter, the LSPS is designed to demonstrate the alignment between State Government’s strategic plans (and, in particular, the North Coast Regional Plan 2036) and Council’s local land use plans and guidelines. Our comments focus on the extent to which the LSPS addresses the following goal, direction and action within the North Coast Regional Plan:

Goal 1 – The most stunning environment in NSW

Direction 2 – Enhance biodiversity, coastal and aquatic habitats, and water catchments

Action 2.2 – Ensure local plans manage marine environments, water catchment areas and groundwater sources to avoid potential development impacts

Approximately half of the water catchment area associated with the Wilsons River regional water supply source is situated in Byron Shire within the sub-catchments of Wilsons Creek and Coopers Creek. This includes the areas around Wilsons Creek, Goonengerry, Federal, Eureka, Talofa, Bangalow, Nashua and Booyong. Approximately half of Byron Shire is located within the Wilsons River regional water supply catchment area.

The Byron Local Environment Plan 2014 ('the LEP') includes a series of Drinking Water Catchment maps, the purpose of which is to identify drinking water catchments subject to the specific assessment considerations included in the LEP.

Accordingly, given this context, RCC considers that it is important that the LSPS appropriately recognise the water catchment values of these locations to ensure that outcomes from the priorities established in the LSPS and associated development is consistent with the water catchment values of these areas.

Comments on Draft LSPS

Overview: In your letter you have indicated that the LSPS “presents Council’s 2036 framework for future land use within the Byron Shire. In bringing together key priorities and actions from our existing land use plans and strategies, the LSPS aims to make it easier for the community to understand the overall direction for land use planning in their local area”.

Our overall comment is that any statement regarding the direction of land use planning in the local area should recognise the catchment values outlined above. At present, the Draft LSPS makes no reference to the protection of catchment values – it does not recognise the above-referenced section of the North Coast Regional Plan (NCRP) and does not recognise the objectives of Clause 6.5 of the Byron LEP 2014 which apply to approximately half of the Byron Shire. This should be addressed.

Specific comment: Our comments are as follows:

• Although recognised in the overarching NCRP Directions, the Sustainable Shire theme and strategic priority SP1 (Protect and enhance our biodiversity, ecosystems and ecology) makes no reference to the protection of regional drinking water catchments.

• The identified listing of Relevant Land Use Strategies, Plans or Policies make no reference to the RCC Catchment Management Plan or to the protection of regional drinking water catchments.

• The identified Benefits of healthy, diverse natural environments make no reference to ’natural infrastructure’. At a landscape scale, our drinking water catchment areas provide a range of 'ecosystem services' that benefit water quality and ultimately provide us with a source of water for the regional water supply. Our drinking water catchments should therefore be considered as key items of 'natural infrastructure' for the rural environment and our regional economy. The value of the drinking water catchment areas within Byron Shire should be recognized as a key natural asset upon which the regional economy is partially dependent.

• Similarly, the Sustainable Priority Actions make no reference to the protection of catchment values within regional drinking water catchments.

RCC to BySC, Public Exhibition of Local Strategic Planning Statement Page 2 of 3 Given the partnership of BSC and RCC in seeking to manage development outcomes within regional drinking water catchments to protect catchment values – at both the LEP and DCP level - it would seem prudent to recognise this intent within the LSPS. RCC requests that BSC consider the opportunities identified above and how best to integrate this intent into this overarching strategic planning instrument and include as appropriate.

Thank you for your cooperation in helping to protect this regional water supply source, and for the opportunity to detail these issues of concern to RCC. Should you require any further information concerning this letter or wish to discuss the issues raised further, please contact Council's Natural Resource Management Planning Coordinator, Anthony Acret, on (02) 6623 3800.

Yours faithfully

Andrew Logan Planning Manager

RCC to BySC, Public Exhibition of Local Strategic Planning Statement Page 3 of 3

OUT20/3916

General Manager Byron Shire Council PO Box 219 Mullumbimby NSW 2482

Attention: Alex Caras [email protected]

Dear Sir

Draft Byron Shire Local Strategic Planning Statement

Thank you for the opportunity to provide comment on the Draft Byron Shire Local Strategic Planning Statement (LSPS), as per your letter dated 1 April 2020. The NSW Department of Primary Industries (NSW DPI) Agriculture division provides advice to consent authorities about the protection and growth of agricultural industries and the resources upon which these industries depend to provide economic growth. The Draft Byron Shire LSPS provides alignment with existing state, regional and local strategic plans and policies that relate to the strategic land use planning needs and community vision for the shire. Agriculture, including agricultural resources, is genuinely considered within the document as part of the theme ‘A Thriving Shire’. The planning priorities identified within this theme are supported. In particular, DPI Agriculture strongly supports the development and implementation of an Agricultural and Agribusiness Action Plan for the shire and would welcome the opportunity to provide input to the plan development. Council may consider further reference to agriculture within the theme, ‘A Sustainable Shire’. This would recognise the multi-functional landscape that rural land and associated agricultural industries provide, including the responsibilities of land managers to undertake best management practices. Further linkages to the relevant sustainable land management actions of the Rural Land Strategy would strengthen the value of agriculture within the LSPS beyond economic purposes. It is noted that the draft LSPS includes residential and employment land investigation areas as identified in the development of the draft Residential Strategy and Employment Lands Strategy for the shire. We thank your council for the opportunity to comment on these potential investigation areas previously and refer council to our former advice relating to those lands identified as regionally significant farmland.

Should you wish to discuss this matter further, please contact Agricultural Land Use Planning Officer, Selina Stillman, on 0412 424 397.

Yours sincerely

13/5/20 Tamara Prentice Manager – Agricultural Land Use Planning

NSW Department of Primary Industries - Agriculture Locked Bag 21, Orange NSW 2800 | 161 Kite St, Orange NSW 2800 Tel: 02 6391 3369 | Email: [email protected] | www.dpi.nsw.gov.au | ABN: 19 948 325 463

OUR REF: C20/179

13 May 2020

The General Manager Byron Shire Council PO Box 219 MULLUMBIMBY NSW 2482 Via email: [email protected]

Attn: Mr Alex Caras

Dear Mr Caras

Re: Draft Byron Shire Council Local Strategic Planning Statement

Thank you for the providing DPI Fisheries, a division of NSW Department of Primary Industries, the opportunity to provide comment on the draft Byron Shire Council Local Strategic Planning Statement (LSPS).

DPI Fisheries has reviewed the draft LSPS in light of the provisions of the Marine Estate Management Act 2014 (MEM Act), the Fisheries Management Act 1994 (FM Act) (namely the aquatic habitat protection and threatened species conservation provisions in part 7 and 7A of the FM Act, respectively) and the Department’s Policy and Guidelines for Fish Habitat Conservation and Management (Update 2013) (DPI Fisheries P&G) (http://www.dpi.nsw.gov.au/__data/assets/pdf_file/0005/634694/Policy-and-guidelines-for-fish- habitat.pdf) and offers the following comments on the planning priorities within the LSPS:

SP1: Protect and enhance our biodiversity, ecosystems and ecology. This planning priority and its associated actions are supported and applauded. The Byron Shire LGA contains important sensitive key fish habitat and is an important location for commercial and recreational fishing. Key fish habitats are those habitats that are most important for protection and conservation to sustain fish populations and should be identified as having high biodiversity values. The establishment of the Cape Byron Marine Park along the Byron Coast is partly in recognition of the importance of the area to marine and estuarine species.

Maps of key fish habitat within the Byron Shire LGA can be viewed here: https://www.dpi.nsw.gov.au/fishing/habitat/publications/pubs/key-fish-habitat-maps. In addition, information and mapping of the Cape Byron Marine Park can be viewed here: https://www.dpi.nsw.gov.au/fishing/marine-protected-areas/marine-parks/cape-byron-marine- park. Byron Shire Council can utilise these mapping layers in preparing the actions of planning priority SP1 to protect these sensitive waterways and riparian zones for aquatic biodiversity (Note: revised key fish habitat mapping will be released by DPI Fisheries and provided to Councils in the near future). For more detailed information on the Cape Byron Marine Park, please contact the Marine Park Manager on 02 6620 9305.

Division of Primary Industries, DPI Fisheries 1243 Bruxner Highway, WOLLONGBAR NSW 2477 Ph: 02 6626 1375 ABN: 72 189 919 072 www.dpi.nsw.gov.au

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Key fish habitats, particularly freshwater waterways, also provide important biodiversity corridors throughout the region which facilitate the natural movement of other wildlife away from areas of more intense development. The Biodiversity Strategy should recognise that freshwater rivers, creeks and streams are important wildlife corridors, similar to linear strips of terrestrial vegetation that sustain high biodiversity values, and ensure that protection strategies are developed and implemented for these areas.

Revision of the Biodiversity Conservation Strategy should recognise the threatened species and ecological communities in the region. This should include species listed under the FM Act that occur within the Byron Shire LGA. Maps showing the distribution of FM Act listed threatened fish species found within the Byron Shire LGA, which can assist with developing planning controls that protect these species, can be found here: https://www.dpi.nsw.gov.au/fishing/species- protection/threatened-species-distributions-in-nsw/freshwater-threatened-species-distribution- maps. The threatened fish species within the Byron Shire LGA include Southern Purple Spotted Gudgeon (Mogurnda adspersa) and Eastern Freshwater Cod (Maccullochella ikei).

It should be noted that DPI Fisheries has a long standing policy position on avoiding, minimising and offsetting impacts to key fish habitats and these policy positions should be recognised within the Biodiversity Conservation Strategy. Details of these policy positions can be found within the DPI Fisheries P&G (Note: a revised DPI Fisheries offset policy will be released by DPI Fisheries in the near future).

A key principle of a biodiversity strategy should be to protect the natural environment. In order to protect natural environments, these areas will need to be adequately identified. During the identification process, in addition to identifying areas of moderate and high environmental sensitivity, identification of degraded areas that could be rehabilitated to once again become areas of moderate and high environmental sensitivity should also be a priority, e.g. areas identified in accordance with the NCRP 2036 Direction 2: Enhance biodiversity, coastal and aquatic habitats, and water catchments, should be considered. This will ensure that these areas are also protected from future development pressures.

The Byron Shire LGA incorporates a range of important coastal key fish habitats including the waters of the Cape Byron Marine Park. Coastal Management Programs (CMP) set the long-term strategy for the coordinated management of the coast and development of CMPs for the Byron Shire coast and estuaries is supported and applauded.

LP3: Support Housing diversity and affordability with housing growth in the right locations; TP: Secure a sustainable supply of suitable employment lands and ensuring growth in appropriate areas: and CP1: Ensuring infrastructure delivery is aligned with planned growth. These planning priorities should also consider providing adequate buffers between development and areas of actual and potentially high environmental sensitivity. The DPI Fisheries P&G includes specific information on buffers between development and key fish habitat. These recommended buffer distances should be the minimum buffers that are incorporated into any planned development. New development should be appropriately located to limit any adverse impact on the region’s biodiversity, coastal and aquatic habitats and water catchments both now and into the future.

Division of Primary Industries, DPI Fisheries 1243 Bruxner Highway, WOLLONGBAR NSW 2477 Ph: 02 6626 1375 ABN: 72 189 919 072 www.dpi.nsw.gov.au

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It will be necessary to ensure that new developments are required to implement best practice erosion and sediment control and stormwater management measures including the principles of water sensitive urban design, to reduce impacts to waterways from the quality, volume and erosive force of stormwater flows. Other sustainability measures captured by the actions under these planning priorities are applauded.

TP2: Develop and implement strategies to support agriculture, agri-business and farmers It will be important to ensure that this planning priority recognises the environmental benefits of implementing best management agricultural practices and that adequate provisions for their uptake/implementation are included within the LEP and DCPs. Implementation of best management practice with respect to agricultural activities assists with ensuring impacts to adjacent and downstream key fish habitats, such as those associated with sediment, pesticide, fertiliser run-off and disturbance of acid sulfate soils, are avoided and minimised.

In addition, maintaining adequate water flow in small coastal streams is important for the natural functioning of the numerous waterways within the Byron Shire. High water use activities in the catchment has changed the way some of these waterways function. Future water availability and use should also be included as a key issue.

SP2: Strive to become a sustainable community; and SP3: Adapting to climate change and building resilience. In adapting to climate change, it will be necessary to identify areas that will be affected by climate change and sea level rise in particular. Identification of these areas is particularly important for land adjacent to existing tidal areas within the Byron Shire LGA. Sea level rise will result in upslope migration of marine vegetation such as salt marsh and mangroves. Areas that will facilitate this upslope migration will need to be protected from development and other pressures to ensure that this process can occur unimpeded. Provision of migration pathways is essential in providing the important coastal vegetation communities with resilience to climate change. This concept should be considered within the development of Coastal Management Programs for the Byron Shire LGA.

If you have any questions regarding these comments, please contact me on 02 6626 1375 or [email protected]. For issues relating directly to the Cape Byron Marine Park, please contact the Marine Park Manager on 02 6620 9305.

Jonathan Yantsch Senior Fisheries Manager, Coastal Systems (North Coast) Authorised delegate of the Minister for Primary Industries

Division of Primary Industries, DPI Fisheries 1243 Bruxner Highway, WOLLONGBAR NSW 2477 Ph: 02 6626 1375 ABN: 72 189 919 072 www.dpi.nsw.gov.au

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Our ref: DOC20/266638

Mr Jeremy Gray Director, Northern Region Department of Planning, Industry and Environment [email protected]

CC: Mr Mark Arnold General Manager Byron Shire Council [email protected]

Draft Byron Local Strategic Planning Statement

Dear Mr Gray

We are writing to provide comment on Byron Shire Council’s draft Local Strategic Planning Statement.

Heritage, culture, history and tradition are fundamental aspects of the identity of a place, and can include Aboriginal, non-Aboriginal, natural, archaeological, movable, maritime and intangible cultural heritage. These aspects define the local character of a place and help create and maintain a sense of meaning for communities.

Local Strategic Planning Statements (LSPS) provide an important opportunity for communities to describe the local character of their places, and what makes them distinctive and different from other places. Through the LSPS, Heritage NSW encourages both Council and the Department of Planning, Industry and Environment (the Department) to consider how known and potential heritage places and values contribute to the local character and sense of place for their community.

We have prepared some general guidance for councils to consider in the preparation of their LSPS, this is provided at Attachment 1.

Heritage NSW supports the following initiatives in Byron Shire Council’s LSPS:  development of a new Arts, Culture and Heritage Policy to provide a strategic framework for the Byron Local Government Area (LGA)  updating Council’s Community Participation Plan to include specific engagement strategies with local Aboriginal communities  preparation of cultural heritage predictive mapping for integration into business activities, and  developing local heritage studies in consultation with the local Aboriginal community and adopting measures in planning strategies and local plans to protect Aboriginal cultural heritage.

Level 6, 10 Valentine Ave Parramatta NSW 2150  Locked Bag 5020 Parramatta NSW 2124 P: 02 9873 8500  E: [email protected]

While the above initiatives are positive, there is very little detail in relation to heritage in Council’s LSPS. We consider that there are opportunities to provide a greater level of information on Council’s heritage and how it is considered during planning. The greatest opportunity here is the inclusion and consideration of both Aboriginal and non-Aboriginal heritage in the LSPS and Council’s Local Environmental Plan (LEP) and Development Control Plan (DCP).

Areas we suggest that Council and the Department consider when finalising the LSPS are:  if the relevant Aboriginal communities and/or groups have not already been consulted about the content of the LSPS, this should be done prior to the LSPS being finalised  preparation of an Aboriginal Cultural Heritage Study to inform amendments to Council’s LEP to protect Aboriginal cultural heritage and cultural landscapes  link LA2- Prepare cultural heritage predictive mapping to LA4 to develop appropriate planning policies and protection  replace the use of “protect historic heritage” in the Liveable Shire:Line of Sight section to be inclusive of Aboriginal and non-Aboriginal heritage protection. Also, in addition to “support and celebrate our heritage” broaden to also identify, protect and conserve  considering the linkages between culture, heritage and tourism, and the opportunities culture and heritage bring for economic growth: including the reactivation of historic buildings  further describing heritage as it relates to local character, including potentially identifying clusters of places and items which contribute to the significant character of the place, and  considering the linkages between actions and priorities, e.g. the ways in which heritage and culture contribute to attractive and liveable places, local employment and community wellbeing.

This would help better align Council’s local strategic planning with the North Coast Regional Plan, specifically:  Direction 18 – Respect and protect the North Coast’s Aboriginal heritage, and  Direction 19 – Protect historic heritage.

Our records show that, in addition to the items of local heritage significance which are listed under Byron LEP 2014 and Byron LEP 1988, the LGA contains:  part of the ‘Gondwana Rainforests of Australia’ which are included in both the World and National Heritage lists  five State Heritage Register items, including part of the ‘High Conservation Value Old Growth Forest’ (SHR 01487)  three Aboriginal Places, and  172 Recorded Aboriginal Sites.

Care must be taken to avoid impacts on these items and sites, and consideration needs to be given as to how to mitigate any impacts where they are unavoidable. We can provide specific information and more detailed advice on the State heritage items, Aboriginal places and sites if required.

The Department of Planning’s publication Aboriginal heritage of the North Coast: a discussion paper includes information which may be of use in updating Council’s LSPS and LEP in relation to Aboriginal cultural heritage. We have provided this publication as Attachment 2.

Heritage NSW has several publications which may be of assistance when addressing the heritage objectives of the LSPS. These objectives should be incorporated with environmental, social and economic considerations to achieve high quality strategic planning outcomes. These publications are available online at environment.nsw.gov.au/Heritage/publications/index.htm.

Additionally, Government Architect NSW’s (GANSW) recent publication Design Guide for Heritage may be of use, this can be found at governmentarchitect.nsw.gov.au/guidance/heritage. GANSW is also undertaking a project to explore opportunities and approaches for Designing with Country, more information on this can be found at governmentarchitect.nsw.gov.au/projects/designing-with-country.

If you have any questions regarding this matter please contact James Sellwood, Senior Heritage Programs Officer, Statewide Programs at Heritage NSW, Department of Premier and Cabinet by phone on 02 9274 6354 or via email at [email protected].

Rochelle Johnston Manager, Statewide Programs Per Pauline McKenzie Executive Director Heritage NSW Department of Premier and Cabinet

As delegate of the Heritage Council of NSW

5 May 2020

Attachment 1 Heritage in Local Strategic Planning Statements Heritage NSW encourages councils to take a strategic approach to developing and implementing the priorities, policy positions and actions in its Local Strategic Planning Statement (LSPS). To ensure that the LSPS provides strong strategic guidance with regards to both Aboriginal and Historic heritage, we recommend that it should consider the following:

Character Statements Character Statements which recognise heritage and culture as a fundamental aspect of the identity of the place.

Planning Priorities Planning Priorities which:  identify Aboriginal cultural heritage and Historic heritage values and opportunities to protect and celebrate those values  recognise the contribution which Aboriginal cultural heritage and Historic heritage make to the sense of place and belonging of a local area  support the protection and celebration of heritage sites and values  identify and celebrate the diversity and heritage of the many cultural groups in the community, and  recognise that Aboriginal and Historic heritage and diversity are a cultural asset and potential driver of tourism and economic growth and the opportunities that this can provide.

Actions Actions which:  capture the identification, appropriate protection, interpretation and promotion of Aboriginal cultural heritage and Historic heritage  require meaningful and ongoing consultation with the Aboriginal community to identify important values and potential issues regarding cultural heritage and connection to land  require meaningful, ongoing and representative community engagement which captures the diversity of the local community  require consultation with State Government agencies in relation to both Aboriginal cultural heritage and Historic heritage  support the ongoing identification and documentation of heritage places and context early, to assist more detailed planning actions to avoid or mitigate impact on heritage items and places  where possible, strategically identify key heritage places and clusters  support heritage asset revitalisation and adaptive reuse  provide guidance for sensitive heritage areas subject to major infrastructure or development  identify funding and resourcing for Aboriginal and Historic heritage priorities  allow for the development of plans and strategies which interpret, celebrate and promote Aboriginal and non-Aboriginal identity, culture and heritage, and  develop strategies and programs to tell the story of a local area, and the diversity of its history and culture.

Naming of Public Authorities Following the 2019 Machinery of Government changes, the names of many public authorities have changed. The Office of Environment and Heritage (Heritage Division) is now Heritage NSW. Council’s should update their LSPS to reflect these new public authority names. Attachment 2 Aboriginal heritage of the North Coast: a discussion paper

Department of Planning, 1989

CONTENTS

1. INT~ODUCTION 1.1 Legislation and Aboriginal Sites 1.2 Land Councils and Aboriginal Heritage

2. PREHISTORY 3

3. BACKGROUND 5 3.1 Tribal Boundaries ' 3.2 Hunting, Fishing and Gathering 3. 3 Settlement Patterns

4. ABORIGINAL SITES 9 4. 1 Rock Shelters and Open Sites 4.2 Middens 4.3 Extraction Sites 4.4 Fish Traps 4.5 Art Sites 4.6 Carved Trees 4.7 Burial Sites 4.8 Stone Arrangements 4.9 Bora Grounds 4. 10 Mythological Sites 4.11 Contact Sites

5. MANAGEMENT PRINCIPLES 23 5.1 Aboriginal Involvement in Site Management 5. 2 Site Management

6. BIBLIOGRAPHY 25

MAP 1 North Coast Region .. MAP2 Local Aboriginal Lgnd,Councils: 1987 MAP3 Tindale's 1974 AbdriginOI Tribes of Australia- North Coast Extract (usinb more. recently adopted spellings) .· MAPL NORTH COAST REGION

. KYOGLE ~')--..._-( '""" Kyaole o I . ~YRON · . \liSMOREt ~Byraa Bay \~ 0 :;,..r-y ~s)NJ ~ mm )BALLINA 0 20 40 60 km _/ -..!? L o B;Riu ~~ RICHMOND\ ~ "-.J\.., __ RIVER (., / wO:~am ' COPMANHURST ( ~c.-~:A "z., l 0 ') Copmanhurst -) Maclean ~0 t.. '(_ ~.J) .Jo -..._, y-0: ·mmarra GRAFJOf NYMBOIDA sULMARR.Ai o Nymloidar "\ __L_,.r~ y-r( COFFS ~ lHARBOUR ) Darrigo l o Coffs Harllour BELLI~GEN 't 0 Bellingen \---"-~ o Kambucca Heads \ \AM BUCCA l\.._; KEMPSEY

.; / ~ ~,'"" .. .-- / ~------~/:.· __~

(_.

' if- 1. INTRODUCTION . '·t:·.t, ·--r ~: ··. . \ .... 4/_f_~i~~"' This discussion paper has been prepared by the significant effect on the environment. Such an Department of Planning and the National Parks and environmental impact statement must contain an Wildlife Service, based on resource material prepared assessment of the likely impact of development on by Denis Byrne for the National Parks and Wildlife Aboriginal sites (Environmental Planning and Assessment . Service in 1988 (Byrne 1988). Regulations, 1980, section 56e) . It provides information on the Aboriginal Heritage Aboriginal sites are also protected by federal of the north coast with the intention that this information legislation. The Aboriginal and Torres Strait Islander will form the basis for discussion and provide a direction Heritage Protection Act 1986 provides for the preservat­ for future policy on the protection of this heritage. ion and protection of areas and objects of particular significance to Aborigines in accordance with Aboriginal This document will also play a role in the regional tradition. The major purpose of this ad is to allow planning process. The Department of Planning is Aborigines to apply to the Minister administering the act currently preparing an environmental study leading to the to seek the preservation or protection of significant areas development of regional policies and, ultimately, a North and objects. This act operates concurrently with State Coast Regional Heritage Plan. For this reason it also acts but also allows the federal minister to halt develop­ contains basic information on the legal status of ment which will destroy or damage significant areas and Aboriginal sites and policies for Aboriginal site objects if State legislation is not able to protect the areas management. or objects of concern. ' l. 1 Legislation and Aboriginal Sites 1.2~-1and Councils and Aboriginal Heritage

The National Parks and Wildlife Act 1974 contains The Aboriginal Land Rights Act 1983 established the provisions relating to the protection of relics and Aboriginal Land Council system in New South Wales. Aboriginal places. A 'relic' is any deposit, object or Land Councils represent Aboriginal community material evidence (including skeletal remains) relating to views on a range of issues, including Aboriginal heritage the Aboriginal occupation of New South Wales. An matters. land Councils may also make claims for Aboriginal place is an area which is gazetted by the unoccupied Crown land which is not needed, or likely to Minister administering the National Parks and Wildlife be needed, for an essential f:>ublic purpose. Private or Act if, in the opinion of the Minister, the area is or was leasehold land cannot be claimed under the Aboriginal of significance to Aboriginal culture. land Rights Act. Further, the act does not allow land Under the provisions of the National Parks and claims to be made on the basis of the presence of Wildlife Act it is an offence to collect artifacts from, or Aboriginal sites. Nevertheless, land Councils have taken excavate an Aboriginal site without a permit from the a strong interest in the existence of such sites in their Director of National Parks and Wildlife (sections 86 and areas and have begun to maintain their own records of 87). It is also an offence to damage, deface or destroy · the location and condition of sites. The Councils see the a relic or Aboriginal place without first obtaining the sites as having an important role to play in the education written consent of the Director (section 90). Furthermore, of their young people. anyone who discovers a relic must report the discovery to All adult Aborigines in the stale are eligible for the Director within a reasonable time of the discovery membership of a local Aboriginal Council, from which (section 91). Regional Councils are elected. Regional Councils in turn The Environmental Planning and Assessment elect the State Council. There are 30 local Aboriginal legislation also recognises the need to protect the cultural land Councils in the North Coast Region. and natural heritage of New South Wales. Under the Environmental Planning and Assessment Act 1979 there is provision fol'..environmental planning before develop­ ment. This act also obliges local councils to consider the impact of development on Aboriginal sjles-before grant­ ing development consent. Under Part V of the Act an environmental impact statement is required where deve~ opmenl by a public authority is likely lo have a N\AP 2 LOCAL ABORIGINAL LAND COUNCILS: 1987

BERRIGAN GARGLE

TUART ISLAND TRIBAL ELDERS DESCENDANTS

2 2. PREHISTORY

The earliest human presence in Australia has been dated indicates that occupation of the Moreton Region - and by to 38,000 years ago during a 1ow sea level phase in extension the north coast of New South Wales- by the Pleistocene era when the sea stood 3(}60 kilometres Aborigines has a long history. Unfortunately, the off the present New South Wales coast. It is likely that unstable coastal landforms in the north coast region the earliest sites on the north coast are now tens of make preservation of sites of such antiguity unlikely. The kilometres out to sea, being drowned as the sea crept oldest sites recorded in northern New South Wales are inland about 14,000 years ago following the last Seelands Rockshelter near Grafton and Stuarts Point shell glaciation. midden near Kempsey: both are approximately 6,500 years old. During Pleistocene times the present coastal zone was probobly little used. There are no sites in the region Recent research has suggested a dramatic increase dating back to the Pleistocene and, of the many radio- in human population after about 5,000 BP. This may 'carbon dated sites in eastern New South Wales, only explain not only the large number of sites along the north two have Pleistocene dates- Burril'take (20,000 (before coast which were first. occupied after tk.at time but also present)l and Bass Point ( 17,500 BP). Occupation of the increased intensity of use evident at a number of these sites indicated only sporadic visits. them. Most of the pi pi middens on the north coast date from about 1,000 years ago and many from 300 to A Pleistocene site dating to ,21,000 BP has recently 500 years ago or even more recently. In prehistoric been found on Stradbroke Island, near . This terms it seems reasonable to conclude that most '

Removing a bark dish or shield from a tree using stone axes and wedges. Photograph from Thomas Dick Collection, courtesy of the Australian MUseum.

3 j archaeological sites in the region are relatively recent. Because they survive much better than any other prehistoric remains and because they were used by Aborigines from the time they arrived on the continent, stone artefacts have been used as chronological markers by archaeologists. In the deposits of many excavated sites, including those on the north coast, it has been possible to observe an early reliance on large tools with steep flaked cutting edges in the period before 6000 BP, after which they were replaced or supplemented by small 'microlithic' points and blades many of which probably served as spear points and barbs. The small backed blades continued to be used on the north coast until ~/. recently. These changes show that Aboriginal lifestyle in the past was not unchanging. Aborigines did not simply adapt to the environment, they actively set about changing their habitat to suit their needs. Most. spectacularly, they used fire to hunt animals and to ' encourage open woodland and grassland at the expense of closed forest. In some areas, the natural vegetation pattern may have been entirely altered by Aboriginal firing.

4 3. BACKGROUND

3. 1 Tribal Boundaries 3.2 Hunting, Fishing and Gathering

The distribution of Aboriginal tribes in the region is The nature of the diet changed with distinct changes in shown on map 3, taken from Tindale' s (1974) the environment in which people lived. On the coast fish 'Aboriginal Tribes of Australia'. The name spellings were netted, speared and caught in stone traps. There shown are those which have been most recently accept­ is considerable variation in material culture associated ed. Tindale attempted to delineate tribal boundaries as with fishing along the coast. For instance, multi-prong they were at the time of European contact. spears were used in the Macleay Valley and south,·but were unknown in the Clarence and Richmond valleys A major problem in delineating boundaries is that where a single, unbarbed wooden shaft was employed. 'contact' produced rapid changes in Aboriginal territorial Fish hooks were also used in the southern parts of the organisation. What is known of the original tribal region but had no place in the toolkit of those further distributions comes from the observations of early settlers north. who often had little idea of what a tribe was, often confusing tribes with clans and language with dialects, Shellfish beds provided a huge store of high quality as well as using a variety of spellings for tribal names. food and there is evidence that people, could afford to specialise on one food type at a time- for example over For the area of the Richmond and Tweed Valleys it ninety per cent of the midden at Wombah consists of has been suggested that Tindale's map might be oyster shells from the Clarence estuary. These coastal modified by extending the boundary of the Kitabal tribe resources may have allowed people to congregate in further south ofTabulum, giving wider boundaries to the large numbers and even permitted village-type seHiements Minjangable and eJJending the territory of thejukambe to be occupied for long periods. tribe. Therefore Tindale' s map should be taken very much as a general approximation of tribal/group distribution Larger game such as emu and kangaroo were requiring considerable refinement. hunted in the more open woodlands and grasslands while smaller game such as wallabies and possums were During the first decades of European contact in the found in the forests. Early European settlers witnessed region, as a result of massacres by Europeans and large hunting drives in which Aborigines used dogs and introduced disease, some tribes lost all or most of their nets to catch very large numbers of small game in the members. A smallpox epidemic in 1829-31 killed about scrub and rainforest margins. Other environments 40 per cent of the population, particularly women and offered different hunting possibilities: the wetlands were children. Later, in the 1880s, reserves were established teeming with wildfowl and their eggs and freshwater and the remnant populations of different tribes were creeks were rich in fish and crustaceans. Flying fox forced together. Later still many of these reserves were camps were raided regularly. closed and their inhabitants placed in one of a number of larger reserves. This caused further mixing of tribal In a diet of plant foods and meat, plant foods groups but, compared with Aboriginal communities contributed at least 50 per cent. It has been estimated elsewhere in New South Wales,.those on the North that at least 132 rainforest plant species were available Coast have SJ~ived well. Many groups were settled on as food !including fruit, leaves and roots) but only 30 are reserves within their traditional territory and contact with listed in the ethnohistorical records as having actually the land and its known sites continued well into this been eaten. The burrawang nut, bracken fern root and century. As an example, ceremonies to increase fish yams were important sources of starch. species were taking place on the in the 1920s and the last extensive initiation ceremonies in the 3 .3 Settlement Pattern region were held at Bellbrook and Nambucca as late as 1935. Human settlement is never random. People have definite Comp~:ued to some parts leg, ar.id and desert reasons for being in certain places at certain times. areas) of Australia the tribal territories in the region are Jhese reasons give rise to a 'seHiement pattern'. Aborig­ small, in keeping with the richness of the environment: ines congregated in large or small groups depending on the abundance and variety of food resources offered by the availability of food and social and religious factors the coastal waters and estuaries, the rainforests, wood­ etc. lands etc. and the general ready availability of water.

5 MAP3 1 I / ) TINDALE'S 1974 ABORIGINAL TRIBES OF AUSTRALIA - NORTH COAST EXTRACT (USING MORE RECENTLY ACCEPTED SPELLINGS)

1!1 Tl.\:-;1 .. \\1 l \

~~: a ~

0 )(I •lO 60 k111

YUGAMBAL

. ·~ 'i CHAN-GATTI/ THUN-GUTTI

6 The Aboriginal inhabitants of the region were contained solidly constructed huts capable of holding up hunter-gatherers which implies they were mobile. While to 15 people. In a number of cases these villages would the distribution of sites in the region shows evidence of have been close to fish traps and it has been suggested -· the activities of these people in every comer of the that the great output of such traps may have been lardscape, it is wrong to think that as mobile groups sufficient to support these settlements. they were fully or even largely nomadic. While this was Table 1 lists the number of sites recorded in the ce.tainly the case in some of the harsher Australian region as well as a percentage of the total. en·tironments, the north east of New South Wales was co nparatively rich in food and water and people were ab:e to live a more settled life. People chose to make base-camps where great co 1centrations of food were available (eg on estuaries an :I inland along major rivers). These were the prime locations and many 9f the other sites sC:attered over the TABLE 1: ABORIGINAL ~ITES IN THE REGION lar dscape, such as the art sites, ceremonial grounds, qu :mies and short-term campsites were used by people rar ging out from, but still based at, these main seHements. At least on the coast, some settlements Total % co 1tained substantial structures which might better be ' ·; ca led villages than camps. · N1iddens 306 28.9 ,, . ,.iJ ;t Population densi~ies are estimated at an average of Rockshelter middens 0.1 on~ person per 0.4- 2.6 square kilometres for the . Open sites 133 co·Jst and one person per 5 square kilometres for the 12.6 foc.thills. This is a high density for a hunter-gatherer Rockshelter deposits 57 5.4 pooulation and it must relate to the rich food potential of Oven mounds the coastal zone. The key zones of concentration were 0.1 the estuaries, the immediate coast and the river valleys. Quarries 16 1.5 Occupation sites are also found away from the Ochre guarries 2 0.2 coJs! and the main rivers. These are all relatively small Axe grinding grooves 2.0 an :I would have been used by hunting parties or groups 21 en:3aged in activities such as obtaining raw material for Scarred trees 55 5.2 stone tools or visiting ceremonial grounds or mythological Fish traps . 0.2 SitE>S. 2 Waterholes 3 0.3 There is a difference of opin!on between archaeo~ t og's!s as to the original pattern of the movement between" ..) Rockshelter art 66 6.2 the coast and the more inland areas. One possibility is · ~? Rock engravings the I groups moved on a seasonal basis, hunting in the 22 2.1 foc·thills in winter and moving down to the coast in the Carved trees 22 2.1 sp;ing to take advantage of the fish glut. On the other Burials ha 1d the coastal group of territories might have formed a 85 8.0 blc -ck to movement by groups from the foothills. Bora grounds 102 9.6 It is likely that some form of inter-tribal agreement Stone arrangements 46 4.3 all•>wed access to coastal resources btJoothills groups Mythological an :I vice ve'tsa. Such resource-sharing also involved 109 10.3 Ira :ling items such as seafood, special stone types for Contact sites 9 0.9 stc:1e tool manufacture, skins for cloakS anti ochre for re< kart and be<:ly painting. ·-· ' - -. TOTAL There are several references to 'villages' o~ the 1058 0.9 co Jst in the records of the earliest explorers. These

7 MAP4 ABORIGINAL SITES OF THE NORTH COAST RECORDED IN THE NPWS ABORIGINAL SITES REGISTER

+ +-*+ + -1- + ++ ++ • + ' ++ ++

+ -l- + -1-• Glen Innes + +-I-

* ,.'1: + -tq. + + + + -t + t + + • Dorrlgo Cofrs Harbour ~4 + * t

,,. +-Jr. *'

+ ++ ~ :ft

-1- +

+ -1-

8 ·4. ABORIGINAL SITES

4. 1 Rock Shelters and Open Sites and what they were using for tools. Taken collectively they form patterns revealing areas or environments which Occupation sites are places where people have camped were most favoured and most densely settled. for any period of time. Occupation sites can be separated into two main Early explorers on the coast mention 'villages' types: rock-shelters and open sites !which would include containing solidly constructed huts. At the other extreme villages). While this division has more significance for are sites where small groups may have stopped to archaeologists than for the people who live at the sites, butcher and cook game, moving on immediately after­ the distinction has been important in the amount of wards. In between these extremes ·are the thousands of attention each type has received in the past. sites used as home bases for a few days or weeks and Rockshelters are attractive as camping places in returned to regularly as groups moved around their that they provide ready-made shelter and relatively flat territories to exploit the changing availability of food and surfaces whiCh are generally dry. The, likelihood is that water. · ' where shelters exist, and they fulfill certain requirements Occupation sites far outnumber any other site type such as size, they were at some stage inhabited. !nearly 500 have been recorded in the region). They The attraction of rockshelters for the archaeologist is reflect the everyday existence of past populations. Taken that, because of the limited interior space, the occupat­ individually they can tell us what people at a particular ion remains are more likely to have built up into an place and time were eating, where they were hunting archaeological deposit than is the case at most open

Aboriginal Bark Hut. Photograph from Thomas Dick Collection, courtesy of the Australian !v\useum.

9 sites. This explains the larger number of archaeological 4.2 Middens excavations which have taken place at rockshelter sites compared to open sites. Middens are the accumulated remains of the exploitation of shellfish beds. With over 300 midden sites recorded Another characteristic of rockshelters is that they are in the region they are the most common type of easy to find, therefore a much higher proportion of occupation evidence. Their size depends on whether existing shelters is likely to have been recorded than of people returned to the same spot repeatedly over the existing open sites. years to feast on the shellfish or whether they are the However, Aborigines in this region would have remains of only a few meals. The largest middens are spent much more time occupying open sites than shelters, found on estuaries such as at Stuarts Point on the , largely because rockshelters only occur in certain geolog­ Macleay where linear mounds of shell over a metre high ical situations such as the belt of sandstone ridges flank­ stretch for several hundred metres. Many of these sites ing the Clarence River from Grafton westward to the have been destroyed through their use in the nineteenth foothills. In most areas of the region rockshelters simply century for lime and road making. do not exist. Smaller Qliddens consisting of thin layers of pipi Open sites typically consist of scatfers of flaked shell are commonly seen exposed in the foredunes of the stone tools and perhaps bone remains and charcoal. long sandy beaches which are such a feature of the They are obviously more exposed to weathering than north coast. Perhaps as many as half the pipi middens remains in rockshelters and often this means that no of the region were destroyed during the sandmining of actual occupation deposit survives. Early illustrations and the 1960s and 1970s. descriptions show open campsites to have consisted of While shells make up the great bulk of the middens shelters of branches and bark surrounding a central area these sites can also contain fish bone, charcoal and, where cooking and other domestic and social-activities sometimes, the bones of land mammals, showing that the took place. people camping at such sites were drawing food from a Most open sites and rockshelter deposits are range of environments. Stone tools and human burial identified in the field by the presence of stone artefacts at remains may also be found at middens. the surface. Most frequently stone tools were used for The concentr<;~tion of shells produces a high manufacturing the many wooden and bone artefacts calcium carbonate level in the qeposit and thus which were part of the Aboriginal tool kit leg, boomer­ provides betfer preservation conditions for bone than angs, shields, bowls and awls for skin-working). Ston·e would be found, for instance, in most rock shelter was also made into tools with flaked or ground cutting deposits. edges which served as projectile points hafted onto spear shafts and blades for butchering animals. Some 18,000 years ago the sea was 100 to 150m lower than it is now. Since the sea reached its pr~nt The 140 open sites and 7 6 rockshelters recorded level around 6000 years ago, after the end of the last in the region are likely to be ohly a small fraction of the glaciation, it follows that most of the middens on the number of occupation sites actUally existing. In an 'present coastline will be y~unger than 6000 BP, ar1d equivalent area on the south coast of New South Wales that many older middens may lie submerged. Middens more than twice as many sites have been recorded 1343 on the Macleay are knoy..'n to be older than 5000 years open sites, 107 rockshelter deposits, 641 middens). and these are the oldesfcoastal sites known in the Rockshelter deposits are partly enclosed and hence region. partly protected but open sites are not only exposed to Middens consist mostly of food refuse and they erosion leg natural weathering) but to damage by field have been overshadowed in the public eye by more cultivation, road construction, housing developments and spectacular sites such as paintings and bora grounds. a myriad of other modern land use impacts. It is likely They are, however, of great importance because of that as many as 60 per cent of open sites and 30 per ... the amount and variety of information which they lc cent of rockshelter deposits recorded in the region are in contain. · · • a disturbed condition. While sites. may· be identified ·• because of this disturbance much of their scientific value is lost by it.

10 /_____ ===:J

Gathering pipis on the North Coast. . Photograph from Thomas Dick Collection, courtesy of the Australian MJseum.

4.3 Extraction Sites hundreds of years of,observation and experimentation, as well as the mea::::; of perpetuating that knowledge. Extraction sites are places where evidence of the way Another aspect of the Aborigines' exploitation of Aborigines used naturally occurring materials can be nature is the almost uncanny economy and the remark­ observed. Europeans have often been surprised at the able efficiency which characterises it. A good example detailed knowledge Aboriginal people had of the land is the care taken to choose pieces of bark or wood from and its resources. Without the aid of geological survey trees which have the exact curvature for a canoe, bowl, maps, Aborigines knew the whereabouts of dozens of boomerang or spear. This means a minimum of work in different stone types, how they could be obtained and producing the Bnished object and also ensures the the best methods of flaking them. . strength and resilience of the object. Aborigines identiBed and named hundreds of With the destruction of the traditional lifestyle and different plants. They knew the growing 0'cle of plant the large scale movement of people to urban centres resources and even how to render poisonous plants safe much of this knowledge has been lost. Nevertheless, for consumption. The same applies to their knowledge of many Aborigines living in the towns and villages of the mammals, birds, fish and insects. This all amounts to a region still regularly eat taditional food and fish at massive body of de:ailed knowledge acc;uired over traditional fishing spots.

ll Stone Quarries manufacture of the tools and their use and maintenance and ends with their discard from the toolkit. The term 'quarry' refers to places where stone has been obtained for manufacturing stone tools. Generally it Stone sources which have been quarried for the refers to places where a relatively large quantity of stone manufacture of ground edge axes have beell located on has been obtained. Quarries are commonly located at the tablelands and western slopes. A detailed study of points where the stone is exposed and accessible. axe distribution in northern New South Wales identified the locations of 517 axes and classified them into 10 Though the term 'quarry' implies excavation, in groups of stone types. The axes within some of these most cases the stone was available on the surface in the groups had a very wide distribution even though they form of an outcrop. The 'quarrying' activity consisted of probably originated from a single quarry. A number of selecting and breaking down the stone from its original source quarries were located by searching what seemed form (boulders, rocks, pebbles) into pieces which could to be the central point of these group distributions for be worked into tools. Blanks were then further shaped or suitable outcrops ')f stone. flakes were r~moved from prepared cores. These were then usually"removed from the quarry for final working Raw material for pebble tools which are found in elsewhere.• sites on the coast and tablelands came· from pebble j beds or from pebble beaches on the coast. There is a Qua~ries are the first stage of a process which coastal quarry at Crescent Head where beach pebbles begins with the extraction of the stone, proceeds to the of shale, originating from the adjacent headland, were '

--, :1

Quarrying North Coast Stone. Photograph from Thomas Dick Collection, courtesy of the Australian Museum.

12 obtained and worked. The pebbles were split and Ochre Quarries manufactured into pebble and flake tools. Ochre was used for body painting and decorating A site at Schnapper Point was investigated in artefacts as well as for rock art. Many ochre quarries 1971 after storms had shifted part of a dune, exposing may have been linked with initiation rites. a surface scatter of pebble tools, waste flakes, cores and In most cases the ochre was available on the flaked and broken pebbles covering a large area. The surface in the form of rocks and nodules and was not scatter lay on a Pleistocene pebble beach and it seems excavated. As with other quarries the main locational the largest pebbles had been selected as raw material factor is the accessibility of ochre sources. Ochre for a range of tool types. Since there was no evidence quarries might be expected to occur cl9,se to concentrat­ of this being a camp site (no midqens or hearths}, the ions,.of rock art sites. This is the case v:;.(th the Jackies people who exploited it were most likely camped near" Creek quarry which is midway between the rock art by. Three nearby camp sites which have been dated shelters at ~opmanhurst ana Chambigne. The Orara were oGCUpied during the 17th and 18th .centuries AD ' River quarr/•is also midway between the Bull P'addock and, since they contain similar stone tools to those found and Blaxla~ps Flat art shelters, south of Grafton. at the q~arry, it is reasonable to link them together. ., Scarred Trees A 'rota I of 16 quarry sites have been recorded in the region so far. Finding the sources of stone used by The practice· of cutting sections of bark ~nd wood from the Aborigines can show how far stone has been trans­ trees )Nas widespread. The trees were carefully chosen ported from its point of origin. Even when the exact • so th<;lt the curvahlre of the trunk would provide the lines ~urce cannot be found, if is possible tq trace theJocality of th~ complet~ shield or canoe .• A welkhosen piece !ibm wh1<::h.it would have'!come. In this.. way clues about of bdrk for d5canoe would ber;ready for the;,w~ter pre-European trade links and contact networks can be without any further finishing. found. Evidence of the use of bark for containers, canoes Axe Grinding Grooves and shields can still be seen on scarred trees in the region. Other trees, popularly known as 'possum trees' Hundreds of years of grinding cutting edges onto stone have had a series of climbing notches cut into them to axes and repeatedly resharpening them has left an enable hunters to catch possums living in the upper part impressive record in the form of grinding grooves worn of the trees. into sandstone rock surfaces. The grooves are typically acentimetre or two in depth, a little more in width and A total of 55 scarred trees have been recorded in vary in length from about 1 0 em to about 30 em. They the region. , Many of these are dead and in various are almost always found in groups of clusters, often states of decay. Several trees, however, are in good quite close together in rows across the rock surface. condition and are protected in state forests and national These clusters range in size from two or three to 170 parks. grooves. The grinding process is aided by water and {:.4.4 Fish Traps grinding grooves are often found close to, or even in rivers and streams. In addition to water they are also Stone walled fish traps and brush fences were used to associated with occupation sites and quarries. trap fish in the upper reaches of some rivers in the region. These have not survived in the archaeological Most sites of grinding grooves are found in the record. There_are also references to fish traps on the vicinity of Grafton in the Clarence Valley, mainly coast and historical accounts by Aboriginal people of because of the distribution of sandstone deposits in this their use. No sites are known which are of unequivocal area (all the 14 sites in the Grafton area coincide with Aboriginal origin. This is not surprising since European · the distribution of the Grafton sandstone formation}. · people are likely to have modified any such structures for There are a fUrther' two sites on the coast' north of Port .,. their own uses. Structures which may have been used Macquarie and a total of 21 sites in the region as a for trapping fish are recorded at Arrawarra and Point whole. Where suitable stone did n,

13 L------,

Aboriginal People at a Carved Tree Site in 1977. , Photograph courtesy of H. Crramer, National Parks and VJildlife Service of NSW.

4.5 Art Sites A total of 66 painting and drawing sites have been recorded in the regio;), along with 22 engraving The tr~dition of rock art in the region was apparently sites. abandoned by Aborigines at the time of contact. There The drawings appear to have been produced by is no record of Europeans ever witnessing art being using pieces of dry pigment as crayons, leaving clear executed. As a result it is diffi.cult to know the meaning !.:nes on the rock surface. Charcocii would have been of the various figures and abstract designs depicted. readily available as a source of black pigment. The Elsewhere in Australia however, it is known that many ochre quarries are possible sources of red and white figur~ are representations of Dreaming Beings, often of ochre though there is no record of them having been the particular Beings associated with the area or a used for this purpose. Those known to Aborigines in the specific site. region today are remembered as being sources of body The art of the region consists of dry pigment draw­ paint for initiation rites rather than art. White clay at ings in red ochre and charcoal, wet pigment paintings in .. several points on the coast and red and yellow red ochre, hand stencils (some of which were made with encrustations found on sandstone in the Blaxlands Flat wet pigment), abraded engravings on sandstone area are also possible sources of red and white ochre. surfaces, pecked engravings on granite, and pounded Drawings and paintings are predominantly in engravings on basalt. It is restricted to places where outline form without three-dimensional perspective. In suitable rock occurs, mainly in the Clarence Valley.

14 \ some later cases figures were superimposed over earlier engravings are on granite and are formed by making figures. There is little evidence ofretouching or renewing relatively deep holes close together t~Jorm lines. North any of the drawings or paintings\Cis is common in some of Port Macquarie three pecked engi'

15 4.7 Burial Sites groups of graves are also found. There is some eviden­ ce that powerful'clever men' may have been buried on Throughout Australia, Aboriginal mythology holds that, their own because of the danger their spirits could pose but for certain events in The Dreaming, men would have to the spirits of other bodies. Graves themselves were experienced an infinite succession of lives in the same often marked by stone or earth mounds and Sometimes endlessly renewed body and death would not have been nearby trees were carved. Some traditional burials were part of the human condition. Although humans are conducted after contact and, in some cases, after the known and expected to die the question remained as to removal of Aborigines to missions and reserves. why people die. The commonest cause was held to be More than 85 burial sites have been discovered sorcery. Damage to certain religious places was also and recorded in the region to date. regarded as a possible cause of death of people ·.· associated with those places even if the damage was Aborigines in the region today are opposed to the unwitting. In recent times illness, old age or accident " disturbance of Aboriginal burial remains. Since the have also been recognised as causing death. -;: ;~ majority are unmarked graves however, they are some­ times disturbed accidentally by earthwork machinery leg The result of death is the separation of the spirit by bulldozers and backhoes). Skeletons are also some­ from the body. To ensure that this separation occurs times exposed in sand dunes, especially following severe smoothly, a number of rites have to be observed. There is storms. In such cases the Aboriginal community usually little information regarding the rites of death in this region requests the reburial of the remains either near the compared to some other parts of Australia. The informat­ discovery spot or in a known Aboriginal burial ground. ion that there is relates to material aspects such as the nature of the graves and the orientation of the bodies, rather than to behavioural aspects such as the nature of 4.8 Stone Arrangements the rites. Little is known about the significance of stone At the time of early European settlement, bodies arrangements. They played a role in higher level initiat­ were buried in a tightly contracted crouching or sitting ion ceremonies and would thus have been shrouded in position, generally upright. They were often wrapped in secrecy. It does seem clear that stone arrangements bark and there are references to limbs being tied toget­ marked the location of certain ce~emonies, including her. This is supported by infqr:mation from Aborigines initiations, and that )he design oHhe arrangements was living -in the region today. dictated by the nature of these ceremonies. At least · The breaking and tying of limbs is a method of : some of them were in use until recent times. discouraging the dead person's spirit from wanting to' In Australia generally, stone arrangements fall return to its old body. In the case of three burials found into several types. These include monoliths marking totem at in 1933, limb bones had been broken centres and ceremonial grounds; stone heaps and sairns before burial. Tliere is little evidence as to whe1her it marking totem centres, graves, tribal boun<;laries a11d was customary to have one or·two-stage burials. In a if!crease sites, as well as stone circles placed arourid •. : . two stage burial the flesh was removed from the bones graves, initiation places, platforms for drying corpses by exposure or temporary buriaJ and the bones were and places used for communicatingwith ancestral spirits. then often wrapped ·in a bundle and buried or deposited in caves. The fact tbot with most burials the bones of the Stone arrangement::; are sometim~s located at skeletons were not separated from the flesh suggests a points of mythological significance. In cases where one-stage burial was practised. initiation rites were held at these places it may have been because of the mythological association. Cave burials were not practised at or after the time of contact. However, several such sites are found in the In general, stone arrangements seem to have Richmond-Clarence area and it thus seems likely that played a more important role in initiation rites in this there have been changes in customs relating to the region than has been recorded elsewhere. It seems that <;Jisposal of the dead. "" for-;the higher stages of initiation, one of the two circles of)he bora ground took the form of a stone arrangement. Sometimes the dead were ~ri~ in·buri~l grounds which belonged to clans and were situated in areas There are bora rings which consist of circular frequented by clan members. Individual graves or small arrangements of stones- the functional explanation being

16 that they are normally situated on stony ground difficult to Stone arrangements are scattered in a way which excavateJntp earth rings. Carved trees are sometimes does not suggE!sj association with any particular environ­ found witli:·stone arrangements, as well as with bora mental zone,; Certain patterns do, however, emerge in grounds. the immediate environment of the sites. They tend to be on high ground, often on the tops of ridges and peaks The most common type of stone arrangement is that commanding spectacular views of the surrounding made up of groups of stone heaps or cairns, varying in country. They are often situated in relatively inaccessible size up to about half a metre in height and 10 metres in places- possibly to maintain secrecy regarding the · diameter. These cairns may be oval, square or rectang­ ceremonies which took place at them. ular as well as circular. Most of the stone arrangements in the region are :\~ The overall form of the arrangements varies greatl'7, found in the Clarence Vall~y. While this might simply be The cairns are often grouped in clusters and the arrange­ a reflection of intensive survey work in this area, there is ments are pft~n situated on ridges and high ground. · no mention in the,.historical literall)re of arrangements in Other arrangement types include those made up of .large the Richmond or Tweed areas. blocks of upright or 'standind stones. The best known of these are near the Serpentine'' River in the Ebor area. South west.of Kempsey, in !he Bcillengarra State There are also sites where individual stones are arranged Forest, is an arrangement of 16 circular cairns with holes into lines and semi circles. in the middle, forming a·scatter down the side of a

'

l•

' . Bora Ground. Photograph courtesy of H. Creamer, No!ional Parb and Vvild!ife Service of NSW.

17 ridge. The cairns average 2.4 metres in diameter and serious underrepresentation of their occurrence. 51 em in height. A total of 46 stone arrangements are There is mention in early records of bora grounds on record in the region. Nv::J.ny of these are poorly with rings outlined by stones - perhaps due to the diffi­ preserved, the loosely stacked cairns and circles being culty of excavating earth rings on stony ground. Another highly vulnerable to distu.rbance by stock. variation is reported for the Tweed River Valley where a central heap of stones was surrounded by a ring of 4. 9 Bora Grounds stones which were often brightly colored. These are known only by historical reference. None are known to Bora grounds are perhaps the least studied of all the have survived into the present. Aboriginal sites. Despite this they are one of the most Initiation grounds are known as 'wundarral' in important type?. of site for Aborigines because of the role the Clarence and Richmond. The term 'bora' seems to they played in ~cerernoniallife. The bora ground funct­ derive from the 'bo,~( or 'boor', a fur-string belt worn by ioned as a sta§\~ for various initiation rites. The place of men of the Gamilq~i tribe. the individual~/¥ the complex kinship system, the obligat­ ions of the living toward the Dreamlirne ancestors and Bora grounds are restricted to south-eastern Austra~ the intricate relationship between the ancestors, the land ia and are only found in large numbers in north-eastern and the people were all part of ceremonies performed at New South Wales and south-eastern Oueensland. bora grounds. The passing on of this body of information As peof?le did not live at these sites there was no was critical for cultural survival. The location of bora build up of rubbish. As a result there is nothing to be grounds often coincided with the location of events in the gainecl from archaeological excavation which has been Dreamtime. a source of information on sites such as rock shelters, Within this region there are a number of different campsites and middens. Information on bora grounds types of bora ground. The most common by far is the comes from two sources: the accounts of early European earth ring bora composed of one or a pair of raised settlers in the region and, mo're importantly, from local earth circles or rings. These range in size from 2 to 40 Aboriginal groups. metres diameter. At time of contact, according to The historical records indicate that the initiation accounts by early settlers, the type of bora ground used process followed by the Thungutti people of the Macleay had two rings, one larger than the other. They were Valley- observed four stages of initiation, each marked by connecte~ by a pathway flanked by ground drawings of a particular sat of ceremonies. Fewer individuals were human and animal figures and by carved trees. Recent admitted to each progressive stage or level. The initiat­ accounts by local Aborigines, some of whom have gone ion rites had an associated set of artefacts which were through initiation at grounds within the region, refer to secret and hidden at pcrticular locations by their custod­ two-ring grounds. ~ ians until they were needed. Each stage of initiation . There are very few sites on record with evidence of took pk:~ce at a different location. connecting pathways except .in the form of entrance · ;\mong the Thungutti the lower stage rites took gaps in the rings themselves. Since bora rings are highly place at bora grounds and the higher stages were vulnerable to destfuciion by ploughing, grazing and , conducted at special bora grounds marked by stone natural weathering, many of the single-ring' sites are likely arrangements. The last male initiation ceremon,ies in the to be remnants of two-ring sites. There is, ,however, region took place in the 1930s on the Nv::J.cleay and the evidence of the use of single-ring enclosures for dancing coast. and fighting. Wordlists for the Clarence area contain separate words for 'bora ground' and 'dancing ground'. When the Thungutti were forced to move to the Bellbrook reserve, secret initiation obiects were removed The banks of the actual rings appear to have been from stone arrangements south of Ebor and deposited at constructed by scraping back the rarth from the centre a bora ground in the Bellbrook area. towards the perimeter, this being done to renew the bora ground for each newceremony. Traditionally all women also passed through initiation riles. The fact that almost nothing has been Rings from sand beeri in constru~\'&1 hci~e r~orded recorded about women's initiation reflects the fact that a few instances on-the coast. Given their susceptibility ed·mogrophers, explorers etc., have, in the past, almost to rapid weathering the few on record are probably a all bc<;n men. There are, however, women still alive in

18 An Aboriginal Natural Landscape Feature Site in Northern ~e~ South. Wales. Photograph courtesy of H. Creamer, National Parks and Wddhfe Serv1ce of NSW.

the region who are known to have passed the 'rules'. ) ' These mythological sites have been located with s~ the help of Aboriginal elders. While the sites are focused A total of l 02 bora grounds have been recorded on identifiable natural features which can be plotted on in the region. Many have been degraded by natural maps, their significance mainly relies on the knowledge weathering and ploughing and are now very difficult to of the elders. These elders have recorded their know­ locate on the ground. ledge of the sites (including the stories associated with . them) on tape so that, when they die, the knowledge wdl 4.10 Mythological Sites remain as part of the heritage of the younger generations. These sites differ from all other types of sites in that they Mythological sites are an integral part of Aborig­ are natural f~tures of the landscape which have not inal culture. Rather than simply illustrating the myths or been modified by Aboriginal people. Mythological sites representing events and locations of the Dreaming they include waterholes, rocks, caves, streams, mountains, are a real and active part of the Aboriginal cosmos. trees and other natural features. They normally relate to When Aborigines speak of themselves as belonging to events in The Dreamlime. rather than :he land belonging to them they are

19 expressing the place of humans in the overall ecology. indicates that owners of mythological sites feel a strong association with the sites and will sometimes visit them to Each tribal territory has its own mythical beings ·renew their 'life-force' - in a sense they are increase sites which are friendly to the people of the tribe but danger­ as well. ous to others. Particular people are vested with the guardianship of particular sites and with the store of Increase sites are totemic in the sense that each myths which go with them. person within society inherited a particular site belonging to a totemic species which became their totem. In this There is wide variation amongst these sites as to region the inheritance of such sites was patrilineal ie,, their significance and power. Most of the 109 on passing from father to son. record for this region are not known to be greatly power­ ful though this could be because much information on Two sites have been recorded which are exclusive­ their significance has been lost. ly for the use of women: Goat Island in the Richmond estuary which is believed to have been a sacred place There is also variation in the ~~.'ent to which they for restoring the fertility ofwomen of the Ciundjalung tribe relate to mythology. Some sites have detailed myths and St Mary's waterhole riE?Qr Coffs Harbour, which was belonging to them which are still widely known today by used by Gumbangirra women to avoid miscarriage people in the Aboriginal community and which involve during pregnancy. known mythological characters. AI the other end of the scale are those mythological sites for which the exact In both or~l and written evidence gathered about significance was not passed on and is now lost. these sites there are many references to the danger emanating from them and injunctions against the misuse There are also sites which are of spiritual rather of them. No doubt this served to maintain the secrecy than mythological importance. An example is the spring surrounding them but if may also have had a more at Cedar Getters' Creek to which young men were practical aspect. For instance, the story associated with known to withdraw for a period of meditation following the Two Sisters Rocks north of Ballina relates how two initiation. girls, swept out to sea by a current, were drowned and The myths associated with sites sometimes explain turned to stone. Children were told this story to stop the origin of aspects of the natural world- these are them swimming in a place which has dangerous sometimes called 'creation sites'. The story associated currents. with fhe Tooloom F9lls~site tell~ how a great flood occurr· c, ed in the course of which the~larence River was deter­ 4. 11 Contact Sites mined and gives details of horv waterfalls· along the river were formed. · Although Cook had sailed up the coast in 1770 and Some sites are concerned with Dr~mtime heroes named several natural features leg Smoky Cape), the first or deities who have hlkn turned into stone. For European explorer to visit the region was Matthew instanGe, the 'clever m~~~ who landed from a boat at Flinders who anchored in the Clarence estuary in August Scott's Head incited th~ sea with taunt~.about its power: 1799. This caused the sea to Clrown them. They'then turned Other. explorers included john Oxley in 1818 and ./ themsefVes into stone and are now the headlands. Alan Cunningham in 1827, who both explored on the t- Increase sites relate to the rites of life. All important tablelands. Captain Rous sur-ieyed the Richmond in species of plant qnd animal are believed to have ritual 1828 and Captain Perry investigated the Clarence in centres. Rites are normally performed at these sites once 1839. a yecir, often at the time of breeding. The purpose is not The first Europeans on the coast were cedar so much to increase a species as to ensure its continued getters. They arrived on the Macleay before 1835 and well being. The rites are usually perf~rmed by initiated were cutting timber on the Richmond by 1842 and on men - there are several references to old Nguloongarra "'the Tweed in 1844. Squatting licenses were taken out men !clever men) controlling increase sites in the Thungutti on the Clarence in 1839 and by 1845 most of ·the and Gumbangirra tribal areas but iqcr;?;S.~. ·~ites belong­ valley had been taken up. · · ing to women are also known to occur: ·· While sometimes violent, contact between the Some increase sites also have mythological signif­ cedar getters and Aborigines was limited. The arrival of icance and evid·:mce from Bundjalung tribal people

20 the squatters was more devastating. As the flocks of The Robertson Land Act of 1 86 1, allowing for sheep competed with game for the;'grasslands, selection before survey, and the breakingyp of the Aborigines attempted to preserve thE'itr livelihood by squatters 'runs' into small farms broughtlntensive and killing sheep and shepherds. The settlers responded by permanent contact with whites and complete dispossess­ killing Aborigines, at first in retaliation, but soon in a ion of Aboriginqlland. Movement across the landscape, systematic drlve to completely wipe them out. Therefore, in the traditional sense, was to become impossible. This in the contact era in this region, there were periods of meant that surviving groups could no longer live off the violent confrontation. Sporadic guerilla-style warfare land and became dependent on European food. It also continued for up to 30 years after contact, particularly on meant sacred and ceremonial sites could no longer be the eastern sc~rp of the tablelands. visited. Initiations, critical to the maintenance of social .1\ control, were often' difficult to perform and there seemed The ma~cre and systematic exterminatio'n of little pojnt in con_tinuing teaching duties and prohibitions Aborigines by settlers, aided by the Border Police and to initiates who could never hope to be true to them later the Native Police, had broken \he back of under the new conditions: Abo.riginal resistance in this region by the 1 860s.

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Local Aboriginal elders a! Stuarts Point, a former Aboriaina! reserve. aazetted in 1885.

Photograph courtesy of H. f National Parks an'd VVildlife SeNice of NS\N.

21 Of interest are those events of the contact period difference being European derived artefacts eg flaked which have survived in the form of significant places. bottle glass. These come under three categories: massacre sites, The only contact campsites as distinct from official contact campsites and reserves. reserves or missions recorded in the North Ccast region .Massacre Sites are those in the Kempsey area, those near Ballina and Yamba and one near Corindi. As well as the countless killings of Aborigines on an individual basis, there are several recorded instances Reserves where groups, often large, were murdered together. In 1882 the Aborigines Protection Board of New South Sometimes they were rounded up by Europeans on Wales was established and the first reserves were set horseback and shot or sabred or, in at least one case, up in the region. Bellbrook reserve was gazetted in driven over the edge of cliffs. Alternafively camps were 1 883, Burnt Bridge in 1 898 and Nymboida in 191 0. surrounded at night and the occupants killed. The Aborigines in New South Wales were riot forced by massacres took place with the assistance of the Border law to live on reserves but were compelled to do so by Police, established in 1839, and later with the Native economic circumstances which made it. impossible to live Police who proved particularly effective in exterminating without government rations. Refuge from the racist and those Aborigines occupying the thick scrub and the often belligerent attitude of the white community also ranges north of the Clarence. contributed. Few massacres were officially documented Although ~borigines lived on the reserves by because they were obviously illegal. Despite this, they coercion rather than choice and although the res~rves were often carried out with the covert support of the land were a symbol of oppression they, nevertheless, were Commissioners who were responsible to the government enclaves of surviving Aboriginal culture. To supplement in Sydney. the meagre government rations people still hunted and Of those documented, the Myall Creek massacre of gathered wild 'bush tucker' iri the surrounding country­ 1838 is famous as being the only occasion on which side. The generations who grew up on the reserves the killers were brought to trial and convicted. often maintain strong emotional ties with these places. A key factor in this is that fact that many of the reserves Several massacre sites have been recorded so far contain Aboriginal cemeteries )Nherein lie buried the in this region. ··~ i~l parents and grandparents of many Aborigines in the ~ Contact Campsites region today. Contact campsites belong to the period after the 1 840s Under the NSW Aboriginal land Rights Act of when it was no longer possible to follow the traditional 1983, most of the former reserves have been vested in lifestyle. Unlike pre-contact campsites, they were not the relevant local Aboriginal land Councils. located according to the dictates of the Aboiiginal traditional economy but to tHe dictates of the white economy." There was no accesS to most of the former hunting grounds arad the ga!T,le had been so reduced that new camps had to be directed towards the only alternative food S{:furce, the white stations and · settlements. These were the first fringe camps . . Aborigines provided cheap labour for the white farms, as well as being exploited for their superior skills in bushcraft !such as cutting bark for fencing and housing or tracking stock in the bush). Their camps frequently had to be moved as white settlemenfintensified.and they often had to leave land that they themselves had cleared. There has been no archaeoldgica( work o~ contact campsites in the region. However, they can be expect­ ed to resemble pre-contact open campsites, the main

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