Glenelg Shire Council
Portland Marine Master Plan
Prepared by Biruu for the consideration of Glenelg Shire Council and the Victorian and Australian Governments
1 June 2016
TABLE OF CONTENTS EXECUTIVE SUMMARY ...... 4 1 INTRODUCTION ...... 6 1.1 PURPOSE AND SCOPE OF THE PORTLAND MARINE MASTER PLAN ...... 6 1.2 STRUCTURE OF THE MARINE MASTER PLAN ...... 6 1.3 STUDY AREA ...... 7 1.4 WHAT FOLLOWS ...... 7 2 CONTEXT OF THE LOCAL PORT ...... 8 2.1 CHAPTER SUMMARY ...... 8 2.2 PORTLAND AND GLENELG SHIRE ...... 8 2.3 HERITAGE ...... 12 2.4 GOVERNANCE AND MANAGEMENT OF THE LOCAL PORT ...... 14 2.5 COASTAL STRATEGY, COASTAL ACTION PLANS AND COASTAL MANAGEMENT PLANS ...... 15 2.6 PORT OF PORTLAND PTY LTD ...... 16 2.7 OTHER PORTS ...... 16 2.8 LOCAL PORT OF PORTLAND BAY ...... 17 2.9 CONSULTATION PROCESS ...... 18 3 OPPORTUNITIES ...... 20 3.1 CHAPTER SUMMARY ...... 20 3.2 ECONOMIC POTENTIAL FOR GLENELG ...... 20 3.3 SOUTHERN BLUEFIN TUNA FISHERY ...... 21 3.4 CHARTER BOAT SECTOR...... 22 3.5 PORTLAND BAY MARINA ...... 24 3.6 FUEL SUPPLY ...... 27 3.7 CRAY FISHING FLEET ...... 29 3.8 TRAWLER WHARF ...... 31 3.9 CRUISE LINERS ...... 36 3.10 MARINE SERVICES SECTOR ...... 37 3.11 TOWN JETTY ...... 39 3.12 OTHER OPPORTUNITIES FOR PORTLAND BAY ...... 43 4 MASTER PLAN ...... 44 4.1 CHAPTER SUMMARY ...... 44 4.2 GUIDING PRINCIPLES FOR COASTAL INFRASTRUCTURE ...... 44 4.3 FORESHORE PLANNING PRECINCTS AND MARINE ZONES...... 44 4.4 PORTLAND MARINE MASTER PLAN ...... 46 APPENDICES ...... 48 APPENDIX A - MASTER PLAN DRAWINGS ...... 48
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Version Control Version Date Purpose Revision A 29 March 2016 For circulation Revision B 15 April 2016 For circulation Revision C 1 June 2016 For circulation This digital file: Glenelg_Portland Marine Master Plan_Report_Revision C Date this digital file was printed: 1 June 2016
Acknowledgements This Master Plan was funded through the Victorian Government’s Boating Safety Facilities Program, and by Glenelg Shire Council. The authors also acknowledge the assistance of port users and other members of the Portland community.
Clarification of accuracy This report uses inputs provided by third parties, including information from the Glenelg Shire Council and its consultant advisors, from consultation with the community and industry, and drawn from publications in the public domain. Biruu has not independently checked these inputs, and notes that the findings presented in this report are subject to the accuracy of these inputs.
Prepared by;
Biruu Pty Ltd Level 14, 15 Collins Street Melbourne 3000 03 9639 0456 www.biruu.com
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EXECUTIVE SUMMARY
Purpose of the Master Plan Portland finds itself overwhelmed by its increasing popularity with visitors (including recreational tuna fishers) and by demand from commercial shipping. Each season an increasing number of tourists from Victoria, interstate and overseas are visiting Portland for its ocean access and requiring up to date boating facilities and services. This Master Plan has been prepared to assist the Glenelg Shire Council and the Victorian and Australian Governments in their consideration of potential investment in the further development of Portland Bay. Economic and social context of the Master Plan Portland’s population, socio-demographic, and economic profile suggests that the creation of local employment opportunities should be a focus of this Master Plan. Employment opportunities which can help retain post-secondary school job seekers in the region would be of particular benefit. Portland has a strong economic base in manufacturing and tourism. Supporting an economic development strategy which builds on these foundations would play to Portland’s competitive strengths. Improving services and the amenity of the harbour will deliver benefits to the local community through enhanced social and emotional wellbeing, and economically through visitor attraction and marine services, and will support Glenelg’s visitor economy and manufacturing sector. Master Plan Opportunities This Master Plan identifies various opportunities for improving the value that Portland Bay brings to the region’s community, summarised below. There are two material constraints on the enhancement of the Local Port’s contribution to growing the visitor economy and its jobs in Portland. These are: a) The lack of a secure supply of diesel fuel at water level in Portland Bay. b) The shortage of berths in the Marina. This Master Plan presents a plan for addressing these constraints. The recreational Southern Bluefin Tuna fishery attracts inward expenditure and investment into the local economy from outside the region and delivers substantial economic benefits to Portland. The Master Plan presents proposals to allow more economic benefits to flow from the Southern Bluefin Tuna fishery. The charter boat sector is an enabler of tourism and inward expenditure and investment, from both tuna fishers and others. The Master Plan seeks to enable expansion of the charter boat sector in Portland. The lack of certainty that diesel fuel can be obtained when needed is one of the most significant weaknesses of the Local Port, and a material constraint to growth in activity. Fuel companies report that sales volumes are too low for fuel supply to be financially viable. The Master Plan presents a proposal for establishing a private sector fuel supply at water level, facilitated by government investment in fixed land side infrastructure. Portland Bay Marina has reached capacity and this is a barrier for innovative new tourism operators growing tourism activity in Portland Bay. The Master Plan presents a proposal for releasing Marina berths by the investment in smaller low cost berths to accommodate boats displaced from the condemned old Marina Jetty. Fishermen’s Wharf which accommodates the cray fishing fleet is nearing its end of life, at which point the cray fishing fleet will need new berths. The Master Plan proposes an expansion of the Trawler Wharf to meet the reasonable needs of the cray fishing fleet. The Trawler Wharf is regularly full, at which time it excludes itinerant vessels from laying up in the harbour for marine servicing and other purposes, and the Master Plan proposes an expansion of the Trawler Wharf to allow for the expansion of the marine service sector in Portland Bay. These initiatives are summarised on the following Portland Marine Master Plan drawing, and explained in detail in the body of this report.
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Figure 1 - Portland Marine Master Plan
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1 INTRODUCTION
1.1 Purpose and scope of the Portland Marine Master Plan Portland is the town it is because of its large natural harbour (Portland Bay), enclosed by breakwaters in the 1950s and protected from every wind direction. It is an asset of state and national significance. Within Portland Bay the Local Port of Portland Bay is managed by the Glenelg Shire Council. This Master Plan has been prepared by Biruu to assist the Glenelg Shire Council and the Victorian and Australian Governments in their consideration of potential investment in the further development of the Local Port of Portland Bay. In 2009 Council commissioned a Business Case consistent with the 2007 Portland Bay Coastal Infrastructure Plan (PBCIP). The Business Case was successful in attracting Victorian Government investment in new facilities in the Local Port (a new marina and boat ramp), which have since been constructed. The success of these new facilities in attracting new users and tourists to the Local Port has grown the local economy but means that further up-dating of marine facilities is now required. This Masterplan does not include a business case analysis, but has been written to support subsequent business cases for investment in new infrastructure.
1.2 Structure of the Marine Master Plan This Master Plan is structured as follows; Chapter 1, Introduction addresses the purpose of the marine master plan, the study process, and next steps. Chapter 2, Context of The Local Port, examines Portland and Glenelg Shire, history and Aboriginal, governance of the Local Port, the coastal strategy regulatory framework, previous studies, existing leases and commercial interests (including Port of Portland Pty Ltd), the consultation process, stakeholders, discussion of the feedback. Chapter 3, Opportunities, examines the Southern Bluefin tuna fishery, the charter boat sector, fuel supply, commercial shipping, recreational boaters, cruise liners, and the marine servicing industry. Chapter 4, Master Plan, presents a proposal for new infrastructure in the Local Port.
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1.3 Study area The study area is represented by the Local Port of Portland Bay, and its immediate environs, shown below. A wider view of the port reveals its environs in 2013, during the construction of the north boat ramp; Figure 2 - Portland Bay, 2016 and 2013
1.4 What follows This Master Plan has been prepared for the consideration of Glenelg Shire Council and the Victorian and Australian Governments, and so may not represent their endorsed views. None of the investments presented in this Master Plan have confirmed funding, and cannot proceed until the proposals are endorsed and funding is provided by Glenelg Shire, or the Victorian or Australian Governments. Glenelg Shire does not have a council rates revenue base which would allow it to fund significant investment in the Local Port of Portland Bay, and so relies on funding support from the Victorian and Australian Governments for assistance with significant improvements in local infrastructure. The Victorian and Australian Governments will fund infrastructure under a range of funding programs where the proposals meet each fund’s investment criteria, supported by evidence presented in an investment business case and funding application. This Master Plan presents some of the evidence that would be required, however it is likely that each investment proposal would require additional evidence and an investment business case prior to funding support. Following endorsement of this Master Plan, the next step in this Master Planning process would be the prioritisation of projects.
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2 CONTEXT OF THE LOCAL PORT
2.1 Chapter summary This chapter presents the context of the Local Port, including the demographic and economic profile of the Shire, the port’s history, and its administrative arrangements. The context of the Local Port informs the prioritisation of potential investments in port infrastructure. Chapter insights Portland’s population, socio-demographic, and economic profile suggests that the creation of local employment opportunities should be a focus of this Master Plan. Employment opportunities which can help retain post-secondary school job seekers in the region would be of particular benefit. Portland has a strong economic base in manufacturing and tourism. Supporting an economic development strategy which builds on these foundations would play to Portland’s competitive strengths. Improving the amenity of the harbour will deliver benefits to the local community through enhanced social and emotional wellbeing, and economically through visitor attraction and support for Glenelg’s visitor economy.
2.2 Portland and Glenelg Shire 2.2.1 Demographic profile - Glenelg Shire Glenelg Shire is located in south-western Victoria, approximately 360 kilometres from Melbourne, covers 6,215 square kilometres, and has a population of approximately 20,000 people. Figure 3 Glenelg Shire
Source: Profile ID
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The Shire’s population is forecast to remain essentially constant over the next fifteen years. Table 1 Population projections for Glenelg Shire: 2011-2031
Difference Per cent Growth per Catchment 2011 2016 2021 2026 2031 from 2011 to change from annum 2031 2011 to 2031
Glenelg 19,849 19,283 19,262 19,365 19,578 -271 -1% -0.07% Shire Source: Victorian population projections, Victoria in Future 2015, Department of Environment Land Water and Planning The population profile (below) reveals a pattern of emigration out of the Shire following secondary education, with people only returning when past 30 years old. Figure 4 Glenelg Shire population projections by 5 year age group 2011 to 2031
Source: Victorian population projections, Victoria in Future 20151, Department of Environment Land Water and Planning
1 Victoria in Future 2015 is the official state government projection of population and households. The projections cover the period 2011 to 2051 for Victoria and the major regions. For Local Government Areas (LGA) and smaller areas (VIFSAs) they cover the period to 2031. See http://www.dtpli.vic.gov.au/data-and-research/population/census-2011/victoria-in-future-2015
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2.2.2 Socio-economic profile Disadvantage The Australian Bureau of Statistics uses census data to produce its Index of Relative Socio-Economic Disadvantage. It is based on a range of census variables considered to reflect levels of disadvantage, including income level, employment status and level of educational attainment. A number of studies have indicated a consistent correlation between low socioeconomic status and poor health. The data has been collated to create the Socio-Economic Index for Areas (SEIFA). Scores are standardised across census collection districts so that the average score across Australia is 1,000. Scores lower than 1,000 indicate relatively more disadvantaged areas and higher scores indicate relatively less disadvantaged areas. Table 2 Index of Relative Socio-economic Disadvantage: 2011 SEIFA Rank within Area (Suburb) Score Rank Percentile Decile Victoria Glenelg 966 758 34 4 121 Portland 925 408 17 2 53
Source: Australian Bureau of Statistics, Socio-Economic Indexes for Areas (SEIFA)
Education Glenelg Shire has a significantly lower percentage (23.26%) of people to have completed year 12 or equivalent when compared with Victoria (49.82%) and a correspondingly higher percentage (18.63%) of people to have completed year 10 or equivalent (and no more) when compared with Victoria (12.02%), based on 2011 ABS data. Employment Glenelg Shire has a marginally higher unemployment rate (5.65%) than Victoria as a whole (5.4%). The age group with the largest unemployment rate is those aged 15-19, who have an unemployment rate of 20.29%, based on 2011 ABS data. Income in Glenelg Shire The following table compares the percentage of low income households across Glenelg Shire and Victoria. It demonstrates that Glenelg Shire has significantly more low income households (44.4%) than Victoria (18%), based on 2011 ABS data. Table 3 Low income households (less than $600 per week): 2011 Number of low income Percent % of low income Areas Total households households households Glenelg Shire LGA 8,697 19,575 44.4% Victoria 419,223 2,282,751 18.4% Source: Australian Bureau of Statistics
Industry Glenelg Shire has a diverse industry base involved in manufacturing, tourism, education, transport, community and health services and retail. Of the 7,437 people working in Glenelg Shire around 68% of jobs are located in Portland. The total economic output estimate for Glenelg Shire is $2,591 million per annum. The total value added by the Glenelg economy is estimated at $920 million per annum, of which Portland is responsible for $654 million per annum, or 71%.
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Table 4 Output report: by industry sector
Source: 2013-14, Australian Bureau of Statistics (ABS), Tourism Satellite Account
Tourism Table 5 shows how many people are employed in the tourism industry in Glenelg Shire. Of the 7,437 people working in Glenelg Shire it is estimated that 482 (4.5%) jobs are supported by tourism. Table 5 Tourism employment: Glenelg Shire
Source: 2013-14, Australian Bureau of Statistics (ABS), Tourism Satellite Account
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2.3 Heritage Portland region The Portland region has historical significance in Victoria’s pre-colonial, colonial and industrial history. Portland Bay is traditional Gunditjmara country. The nearby Budj Bim National Heritage Landscape contains the remains of potentially one of Australia's largest aquaculture systems. Dating back thousands of years, the area shows evidence of a large, settled Aboriginal community systematically farming and smoking eels for food and trade. It is sacred to the Gunditjmara people and included in the Australian Government’s National Heritage List in 2007. World Heritage Listing is now being sought2. The coast of South West Victoria was charted by Lieutenant James Grant aboard the Lady Nelson in 1800, and the coast was renamed Portland Bay after the Duke of Portland, the British Home Secretary. In the wider Portland Bay sweep of coast is the historically significant Convincing Ground, one of the state’s first whaling stations and the site of one of the state’s first recorded massacres. Tensions had existed between whalers and local Aborigines since the foundation of the whaling site, and in 1833 or 1834 they erupted in a violent conflict over the ownership of the carcass of a beached whale3. In 1834 Tasmanian based businessman Edward Henty occupied Gunditjmara land around Portland Bay to establish a farming settlement. In 2002 the Glenelg Shire Council acknowledged the suffering endured by the Aboriginal people as a result of European settlement and signed the Memorandum of Understanding4, which sought to promote reconciliation by encouraging Aboriginal involvement in decision making and assisting Indigenous economic development. The Glenelg Aboriginal Partnership Agreement 2011-2020 was introduced by the Council in 2011 and “recognises the rich and diverse contribution that Aboriginal people have made and continue to make toward the identity, wellbeing and prosperity of the Glenelg Shire”. The Gunditjmara Native Title Determination addressed land and seabed areas in and around Portland Harbour. Schedule 1 of the Gunditjmara Native Title Determination records the area covered by the previous works in Portland Harbour due to previous dredging, reclamation or other public works. Implementation of this new Masterplan should be accompanied by further consultation with the traditional owners including the Registered Aboriginal Party, and clarification with the Victorian Government as to the native title status of the land concerned. According to the ABS, the number of Australians in the Glenelg Shire who identify as Aboriginal or Torres Strait Islander is 2.1%, more than three times the Victorian average. Portland Bay Portland Bay has been valued for its sheltered deep water refuge since the Lady Nelson visit in 1800. Port infrastructure developed progressively since the mid nineteenth century. The photographs below record Portland Bay the inter-war years, prior to the construction of the breakwater.
2 Winda-Mara Aboriginal Corporation 2010 3 ANU, Aboriginal History Volume 35, 2011 4 http://www.glenelg.vic.gov.au/Files/MOUIndigenousCommunities.pdf
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Figure 5 - Portland Bay pre-breakwater
The Victorian Government recommended the Port for upgrade in 1945, with the breakwater constructed in the 1950s and officially opened in 1960. In 1996 the Victorian Government sold the Port of Portland to Port of Portland Pty Ltd. The Local Port was established in 2009 and has undergone extensive upgrades. In 2008 trawler wharf construction commenced, including the construction of a floating pontoon. Land reclamation works of the lagoon left from the breakwater construction began in late 2011 and were completed in July 2012. Following land reclamation, construction began on a 70 berth-floating marina and was completed in April 2013. Construction of the north boat ramp following in 2013 and 2014.
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Figure 6 - Portland Bay 2008 and 2015
2008
2015
2.4 Governance and management of the Local Port The Local Port of Portland Bay is established under Port Management Act 1995. Under the Act, local port managers are responsible for the operation and maintenance of local ports, including: planning issuing permits and licences allocating moorings maintaining wharves, jetties and navigation aids dredging operating facilities such as slipways, and constructing new facilities. The Department of Economic Development, Jobs, Transport and Resources (DEDJTR) is responsible for managing the overall funding program for local ports and providing broad strategic planning services for local port facilities across the state. Transport Safety Victoria (formerly Marine Safety Victoria) regulates the efficient and safe operation of vessels on State waters under the Marine Safety Act 2010. The Environment Protection Authority is responsible for the preparation, administration and enforcement of State Environment Protection Policies (SEPPs) and related provisions that includes those relating to the coast and adjacent waters. Port of Portland Pty Ltd is a privately owned company. It owns the port land freehold, and is licenced by government to provide international port services.
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2.5 Coastal Strategy, Coastal Action Plans and Coastal Management Plans Strategic Coastal Planning Overview Coastal strategy is governed by the Coastal Management Act 1995. The Victorian Coastal Strategy establishes the overall framework for planning and management of the Victorian coast. It was developed by the Victorian Coastal Council and approved under the Coastal Management Act 1995. It provides strategic direction for planning and management of the whole coast and integrates state, national and international principles and policies for the coast. The Victorian Coastal Strategy 2014 supports a hierarchy of principles and recognises that the foundation of coastal planning and management is a healthy coastal and marine environment. These principles give effect to the directions in the Coastal Management Act 1995 and are included in the State Planning Policy Framework and in planning schemes across Victoria. Consistent with the Victorian Coastal Strategy, Coastal Action Plans and Coastal Management Plans are developed and integrated with planning schemes at the regional and local level to provide detail and give attention to regional and local issues. The South West Victoria Regional Coastal Action Plan5 records that significant regional environmental, social and economic values associated with the coastal and marine environment to be protected and enhanced. As a practice, it proposes that land managers and owners protect regionally significant environmental, social and economic values. The Western Victoria Boating Coastal Action Plan6 provides the strategic framework to guide the provision of improved and more sustainable boating facilities across the Western coastal region. It nominates Portland as a designated State Marine Precinct (just two cover the coast from Port Phillip Bay to South Australia, being Portland Bay and Warrnambool), and assigns Portland a high priority for the new boating facilities hierarchy. Figure 7 - Western Coastal Region Recreational Boating Facilities Hierarchy
5 www.ghcma.vic.gov.au/media/uploads/South%20West%20Regional%20Coastal%20Action%20Plan%20Fin al.pdf 6 http://www.wcb.vic.gov.au/bcap/documents/WesternVictoriaBoating_CAP_Complete_Web.pdf
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The Plan sets out typical components expected of a State Marine Precincts, as follows: • Expected access facilities are safe harbour, car parking, disabled access, launch and retrieval boat ramps, pier/jetty. • Expected berthing facilities are public berths (itinerant), wet berths, mooring jetties, commercial shipping facilities, access to fuel, pumpout, toilets, washdown, fish cleaning, security, signage service utilities (power/water/lighting). • Expected recreational/tourist facilities are capacity for major public boating events, boat hire/charter, commercial vessel berthing facilities (including ferries), community facilities (including club rooms), recreational facilities (including picnic tables, bbq’s, walkways), retail or entertainment and land based uses/attractors • Expected maintenance facilities are boat repair and servicing, chandlery / boating retail. Of these, Portland’s primary deficiency as a State Marine Precinct is its poor boating fuel supply, discussed in this report.
2.6 Port of Portland Pty Ltd The Victorian Government sold the freehold land and management rights of the Port of Portland in July 1996 and it is now owned and managed by the Port of Portland Pty Ltd. The Port specialises in bulk commodities, particularly agricultural, forestry and mining products as well as aluminium and fertiliser. The export trade includes grain, woodchips, logs, aluminium ingots and livestock, while import commodities are alumina, liquid pitch and fertiliser products. The Port is served by both road and rail systems, which bypass the City of Portland to allow 24-hour access. It delivers $2 billion into the region and the nation each year. Port of Portland Pty Ltd is owned by two infrastructure funds, Utilities Trust of Australia (a fund managed by Hastings Funds Management), and Palisade Ports Pty Ltd (an investment managed by Palisade Investment Partners). More information on Port of Portland can be found at portofportland.com.au.
2.7 Other ports The Portland region has the following ports:
Port MacDonnell Port MacDonnell is 28km south of Mount Gambier, 450km south east of Adelaide and 460km west of Melbourne. Facilities include: Breakwater and safe harbour refuge Four lane boat ramp with two floating concrete pontoons Wharf not suitable for heavy tonnage
vessels, available for short term wharf edge berthing (no long term berths) Fuel is available at water level from a fixed tank and bowser.
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Portland State Marine Precinct Portland is 362km west of Melbourne and 550km south east of Adelaide. Facilities include: Single, Three and Four Lane Boat Ramps Breakwater Trawler Wharf including floating pontoon. The wharf can berth up to nine vessels, with a maximum of 300 tonnes
The Portland Bay Marina. No fuel is available at water level
Port Fairy Port Fairy is 290km west of Melbourne, 590 km south east of Adelaide and 95km south of Hamilton. Two slipways used for recreational and commercial purposes. Ocean-protected marina berths. Two lane boat ramp Fuel is available at water level from a fixed tank and bowser.
Warrnambool State Marine Precinct Warrnambool is 250km west of Melbourne, 100km south of Hamilton and 600km south east of Adelaide. Facilities include: 400m breakwater Boat ramp with a lower landing attached to the Breakwater
14 swing moorings High wave height can impede safe boat launching in Warrnambool’s Lady Bay No fuel is available at water level
2.8 Local Port of Portland Bay The Local Port of Portland Bay is located in the Portland Harbour and is managed by the Glenelg Shire Council. In April 2013 the Local Port Boundary was extended to accommodate all Marina facilities. The Local Port currently comprises a number of different elements including: The Trawler Wharf including floating pontoon A Single Lane Boat Ramp
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A Three Lane Boat Ramp A Four Lane Boat Ramp The Portland Bay Marina Parking for vehicles with boat trailers using the boat ramps The Local Port waters offer a safe harbour in all wind directions. Waters become shallow and un-navigable closer to shore. Tides at Portland are diurnal with a mean spring tide range of 0.9m. Currents are low considering the low tide range. Introduced marine pests have been found7 to include toxic dinoflagellates (Alexandrium spp.), Corbula gibba (one specimen) and Musculista senhousia (one specimen). Figure 8 - Portland Bay water depths
2.9 Consultation process Consultation with the Portland Community in relation to local port infrastructure has run over several phases. Insights from each of these phases has been considered in the preparation of this Master Plan.
2007 Portland Bay Coastal The preparation of the Portland Bay Coastal Infrastructure Plan Infrastructure Plan involved an extensive consultation process including 26 x individual stakeholder interviews, design options meetings with the stakeholder
groups, two residents discussion groups, day and evening community and stakeholder design workshop – preferred design option, councillor briefing workshops, and steering committee meetings with Glenelg Shire Council, DSE (now DELWP), Regional Development Victoria, DoI (now DEDJTR), Greater Green Triangle ACC representatives.
7 Parry, G.F., Currie, D.R. and Crookes, D.P., (1996). Exotic marine pests in Portland Harbour, Marine and Freshwater Resources Institute Report, 1, 20 pages
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A summary of messages from stakeholders reported in the 2007 plan included the following; All stakeholders unanimously supported public access to the Lee Breakwater to be retained in the future, and believe this is essential for Portland residents and visitors alike. All stakeholders supported the decommissioning of the Marina Jetty. There was overwhelming demand for a second boat ramp to be located within Portland Harbour to service recreational trailer boats and relieve current congestion. It is important to preserve Henty and Nun’s Beaches as recreational and amenity precincts for safe swimming.
2011 New marina and north Council, user groups and members of the community were consulted boat ramp/lagoon during the design and development of the new marina and north boat partial infill ramp/lagoon partial infill, in a process managed by Ainley Projects. In summary feedback from this consultation included the following: The project activities (new marina and north boat ramp) in general had support from majority of stakeholder groups (5 out of 6). The new marina had unanimous support from identified stakeholder groups and the local community that attended the workshop. There was recognition of the need for a new boat ramp and support for it to be in the proposed location. There was no strong opposition to the location of the proposed new boat ramp. There were concerns around the proposed partial lagoon reclamation and its impact on environmental values of the lagoon area.
2015 Town Jetty (old Marina In November 2015 Council issued a public call through the Portland Jetty) replacement Observer for submissions of ideas for a potential new jetty to replace the condemned old Marina Jetty. The insights from that consultation are presented in the Town Jetty section. 2016 Portland Marine In 2015 and 2016 a wide range of parties with an interest in the Local Master Plan Port were consulted to provide background to the preparation of this Master Plan. This including over two dozen individual stakeholder interviews. Consulted parties included those with the following interests in the Local Port; State Government Leisure users Commercial users Cray fishers Businesses operators
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3 OPPORTUNITIES
3.1 Chapter summary This chapter investigates the opportunities for development of the Local Port, the benefits such development would create for the community and economy of the region. Chapter insights The Southern Bluefin Tuna fishery attracts inward expenditure and investment into the local economy from outside the region and delivers substantial economic benefits to Portland. The charter boat sector is an enabler of inward expenditure and investment, from both tuna fishers and others. The Master Plan should seek to enable expansion of the charter boat sector. There are two material constraints on the enhancement of the Local Port’s contribution to growing the visitor economy and its jobs in Portland, which the Master Plan should address. These are: o The lack of a secure supply of diesel fuel at water level in Portland Bay. o The shortage of berths in the Marina. Fuel companies report that sales volumes are too low for fuel supply to be financially viable. The Master Plan presents a proposal for establishing a private sector fuel supply at water level, facilitated by government investment in fixed land side infrastructure. The Marina has reached capacity and this is a barrier for innovative new tourism operators growing tourism activity in Portland Bay. Marina berths could be released by the investment in smaller low cost berths to accommodate boats displaced from the condemned old Marina Jetty. Fishermen’s Wharf which accommodates the cray fishing fleet is nearing its end of life, at which point the cray fishing fleet will need new berths. An expansion of the Trawler Wharf would meet the reasonable needs of the cray fishing fleet. The Trawler Wharf is regularly full, excluding itinerant vessels from laying up in the harbour for marine servicing and other purposes. An expansion of the Trawler Wharf would allow for the expansion of the marine service sector in Portland Bay, and more commercial shipping.
3.2 Economic potential for Glenelg Portland’s safe harbour is the reason for the town’s existence and the economic foundation for the local economy. While the commercial deep sea port (Port of Portland) underpins much of the economic activity in the local economy, the Local Port of Portland Bay is also a major driver of economic activity. An indication of the economic contribution of the Local Port can be found by extrapolating from study of some user groups. For example, Deloite Access Economics8 calculated the direct spend in the local economy of Southern Bluefish Tuna fishers in the 2012 season (which in that year ran for five months). Deloitte’s analysis excludes other users of the local port or other people in Portland because of it, excludes the families of tuna fishers, fishers of other species and at other times, the cray fishing fleet and deep sea trawler fleets, people accessing the harbour Local Port other purposes, and all other users of the Local Port. Deloitte’s study found that in 2012 Southern Bluefish Tuna fishers alone directly spent in Portland “$7.3 million to $7.7 million on accommodation, food and drinks, fuel for cars and boats, fishing supplies and charter boat fees”. Since 2012 the number of Southern Bluefish Tuna fishers visiting Portland has grown significantly, and the season has lengthened. Having regard to the flow-on effects of direct expenditure and extrapolating Southern Bluefish Tuna fishers expenditure for other sectors indicates that the total economic impact of the Local Port on the regional economy could be multiple tens of millions of dollars per annum.
8 Assessing the economic value of the 2012 Victorian recreational Southern Bluefin Tuna Fishery in Portland, Deloitte Access Economics for Department of Environment and Primary Industries, May 2013
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3.3 Southern Bluefin Tuna fishery
Context Figure 9 – Tuna fisher origins Portland offers some of southern Australia’s best recreational fishing, in particular Southern Bluefin Tuna. The fishery is now sustainably managed; commercial quotas out of Port Lincoln have been increasing, and the tuna season, which used to run from March to July, now sees the first tuna arrive in February and the last leave in October, with a few also seen in the off-season. The fish now come in as close to 2 kilometres from the Port, and out past the continental shelf approximately 44 kilometres out. The tuna season is a significant driver of Portland’s visitor economy. Deloitte9 found 95% of the tuna fishers travelled to Portland from another postcode area, in the vast majority of cases for the sole purpose of fishing (94%). Those visiting from elsewhere support Portland’s accommodation and food and beverage sector, as well as fishing suppliers and other retailers. Three quarters of tuna fishers launch their own boat from a boat ramp in the harbour, so the sector is supported by good boat launch facilities. Trailable boats are mostly powered by petrol engines and usually purchase fuel on the trailer at conventional petrol stations and do not necessarily need bowser access on water, but this is not the case for non-trailable boats.
Tuna fishers’ needs Figure 10 – Weigh station Boat launch and fish cleaning area - Tuna fishers need access to boat launch ramps. gantry in use The recent investment in the north boat ramp and its fish cleaning area have enabled growth of tuna fishers in Portland. Fish weigh station gantry – Fish weight is an important part of the fishing experience, particularly game fishing. A fish weight station gantry, accessible from boats before landing their catch, would add considerable amenity to the game fishing experience in Portland, and thereby promote its growth. Fuel – A quarter of tuna fishers do not use trailable boats and so do not have access to conventional petrol stations. These fishers need reliable access to fuel at water level . Figure 11 – Crowded fish cleaning tables
9 ibid
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3.4 Charter boat sector Context
Portland has a healthy charter boat sector, servicing the eco-tourism, game fishing, and general commercial markets. Figure 12 – South West Charters' Charter boat numbers fluctuate and some operators work out of "Timaru" more than one port across the year. In 2016 around seventeen commercial charter boats operated out of Portland Bay. The dominant business of charter boats flows from the Southern Bluefin Tuna fishery. Outside tuna season the sector offers fishing tours for other species. Example of eco-tourism include whale and seal watching. South West Victoria is the Southern Right Whale’s nursery from June to October. From November to May sees the migration of the Blue Whale, as it feeds on krill nourished by the Bonney Upwelling (extending from Portland to Ceduna). The commercial charter sector largely services scientific, fisheries and commercial research. The charter boat sector is economically important to Glenelg’s visitor economy as a tourism enabler. Visitors without an ocean going vessel can access the region’s natural ocean attractions on charter boats, and they attract visitors from outside the region who also spend more in the local economy; Deloitte10 found “those using charter boats had travelled, on average, further to Portland than those using private boats”, and that “anglers on charter boats spend more than anglers on private boats”. Charter boats’ larger size also act as a buffer against bad weather; Deloitte found “on good weather days 25% of the sample were anglers on charter boats compared with 45% on bad weather days”. Charter boat fishing has wide and international appeal as a tourism product supporting Portland’s visitor economy. For example, the images below record Korean visitors in 2016 enjoying an “ocean to plate” fishing and dining experience. Supporting the growth of the charter boat sector would support the growth of jobs and economic activity in Portland. Figure 13 - "Ocean to plate" charter boat tourism offer
Charter boat needs Access to fuel – Consultation with charter boat operators confirms that Portland’s lack of marine bowser diesel fuel is their primary business constraint. To obtain fuel operators usually seek to make ad hoc arrangements with the fuel truck operator(s) servicing the harbour. On those occasions during busy periods
10 ibid
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when the truck cannot deliver the effect is to largely shut down this part of the visitor economy, a situation which occurred during Easter 2015. The alternative to the fuel truck is to trolley multiple jerry-cans to the water’s edge. This approach is impracticable for larger charter boats and increases the risk of a fuel spill into the marine environment. Access to Fish Cleaning and Berthing – Charter boats drop their customers near the south boat ramp, so the sector needs ready access to a landing point near these facilities. Landing customers and catch can crowd a jetty so a jetty used for casual fishing / walking is not compatible with charter boat use. Charter boats are typically not readily trailable and need a wet berth in the port – if the Marina is full new operators cannot establish businesses in Portland, a potential capacity constraint on Portland’s visitor economy.
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3.5 Portland Bay Marina Context
The Portland Bay Marina is a floating marina Figure 14 - Marina plans containing 70 berths, with facilities for electricity and water and a full time security system. It opened to the public in 2013. The Marina has commercial and recreational boat berths between 5 metres and 18 metres and can accommodate larger visiting boats up to 40 metres on its outside berths.
The Marina is now full to capacity, placing a constraint on the growth in Portland’s visitor economy. Charter boats are typically non- trailable so can only establish business operations in Portland with a Marina berth. Figure 15 - Marina security monitoring Owners of large vessels can choose Portland as their home port, even though they may live elsewhere, and so bring their expenditure and marine servicing investment to Portland. They can only do so with a Marina berth. Likewise passing yachts can only lay up in Portland for marine services if they can access an itinerant berth in the Marina.
The expired boat problem
Regional ports around the Australian coast which offer legacy low coast moorings can establish a perverse incentive for boat owners – the cost of keeping a boat on a cheap mooring, even over many years, is less than the one-off cost of disposal of an unseaworthy craft. This can create an incentive for useful berths Figure 16 – Inca removal to become occupied by unsellable/unsailable/unsailed craft, which are sometimes then abandoned for disposal by the port manager. This perverse incentive underpins a public policy argument that port managers should not price berths too cheaply, and that the annual berthing fee should be no less than a meaningful proportion of the cost of boat disposal. The removal in 2015 of the abandoned unseaworthy vessel “Inca” (shown right) for breaking up and disposal by Glenelg Shire evidences the potential cost to the wider community of abandoned boats.
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Boats from the old marina jetty
Boats relocated from the old marina jetty (now closed and condemned Figure 17 – Power/water pedestal for demolition) and those previously on swing moorings are now distributed around the Local Port and its Marina. Many of these craft did not previously seek or have access to the level of service they now enjoy (locked gates at night, 24 hour security, water and electricity pedestals). These services are reflected in the berthing fees charged to new craft in the Marina. Consultation with owners of boats from the old marina jetty revealed they were typically happy with the current arrangements provided they were not asked to pay current market rates for their relocated berths. Other boat owners consulted questioned the equity of two pricing regimes for the same level of service. Boats from the old marina jetty could be accommodated in an extension to the Marina offering a lower level of service in acknowledgement of a lower fee, freeing up serviced berths priced at market rates, to allow for an expansion of capacity of the Local Port.
Master Plan proposal This Master Plan proposes an expansion of the Marina to facilitate more boating in the Local Port, to facilitate the growth in Portland’s visitor economy. The Marina was designed with passive provision for expansion as shown. Scheme A and Scheme B could be subsequent phases of Marina expansion. Figure 18 - Potential Marina Expansion schemes, Scheme A and Scheme B Marina Expansion Scheme A Scheme A provides an additional twenty 7.5m berths in the marina. These berths would be unserviced with power/water pedestals, and provided to boats relocated from the old marina jetty. For construction efficiency, water/power pedestals might be installed at the time of construction but blanked over until needed. As boats relocated from the old marina jetty change owners or expire, these berths could be provided to new Marina users.
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Marina Expansion Scheme B Scheme B provides an additional; twenty unserviced 7.5m berths eight 10m berths fourteen 12m berths six 15m berths six 18m berths As with Scheme A, the 7.5m berths would be unserviced with power/water pedestals, and provided to boats relocated from the old marina jetty. For construction efficiency, water/power pedestals might be installed in these berths at the time of construction but blanked over until needed. As boats relocated from the old marina jetty change owners or expire, these berths could be provided to new Marina users. The rest of the berths would be provided with power/water pedestals and charged at market rents.
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3.6 Fuel supply Context Portland Bay has no fixed fuel bowser at water level. This is a significant issue for boating in the harbour. Currently, boats requiring fuel do so by private arrangement with local fuel tankers, subject to the tankers’ other commitments. In some cases boaters resort to the risky practice of manual handling “jerry cans”. Trailable boats typically use petrol and can obtain fuel on their trailer at conventional petrol stations. The options of manual handling drums or petrol stations are not available for larger, typically diesel, craft. The Local Port’s statutory framework indicates a requirement that a secure fuel supply should be available in the Bay. The Local Port of Portland Bay is nominated as a State Marine Precinct in the Western Victoria Boating Coastal Action Plan (see earlier discussion). It assigns Portland a high priority for the new boating facilities hierarchy and sets out an expectation that fuel will be available in the Local Port. The local fuel supply market is quite shallow, with just two oil companies with supply chain infrastructure in the region, and one fuel supplier suppling most of the marine diesel market from a small rigid tanker. Consultation with boaters revealed the lack of certainty that diesel fuel can be obtained when needed is one of the most significant weaknesses of the Local Port, and a material constraint. Fuel shortages have almost shut down the marine tourism market. Boaters report during Easter 2015 the fuel tanker had other commitments and declined to supply. The effect was to prevent charter boats operating for half of the peak Easter season. Some boats reportedly resorted to manual refuelling from multiple “jerry cans”, placing the marine environment and their personal safety at risk, while others remained in port. Craft passing down the coast are reportedly uncertain whether and when the tanker will supply fuel and so they bypass Portland Bay. During the consultation period of this study a large leisure craft did enter the harbour for fuel, and reportedly moved on when they could not settle arrangements with the tanker. It is not practicable to determine the number of boats which simply bypass the harbour. Large leisure craft with the option for choosing a home port find Portland unsatisfactory, denying Portland their visitor economy and marine servicing expenditure. As an example, one boater consulted for this study who retains a berth in Portland for fishing visits, returns his boat to Hastings in Western Port largely for ease of fuel access. It is not practicable to determine the number of boats which would berth in Portland if they were confident they could obtain fuel when they needed it. Regular fuel customers such as the cray fishing fleet have more reliable supply from the tanker which operates on the goodwill of those involved. Notwithstanding, cray boat owners did report a desire for a more secure arrangement, if the fuel price was competitive. The Marina was constructed with provision for fuel supply; it has a bowser berth with some infrastructure installed but idle. The fixed fuel tank was planned to sit at the edge of the Marina car park. The Trawler Wharf was constructed with a Figure 19 - Example fuel bowser on the Yarra River buried jacketed fuel pipe along its length. The slipway lessee at that time asserts ownership of the pipe, which was reportedly installed on public land under licence. The slipway lessee anticipated the possibility of installing a tank on the Port of Portland Pty Ltd land. The huge demand and buying power of deep sea trawlers means they are served by road tankers. Likewise ocean going ships in the Port of Portland have their own bunkering arrangements. Local fuel companies have in recent years explored investment in water level diesel supply, and reported that the annual sales volumes are too low to repay the infrastructure investment, having regard to the quieter off season. The Master Plan presents a proposal for establishing a private sector fuel supply at water level, facilitated by government investment in fixed land side infrastructure.
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Figure 20 - Port Fairy fuel bowser and slip way
Master Plan proposal Location: A fuel bowser and tank could be installed in either or both of two places. a) Install a fuel berth/bowser on the Trawler Wharf floating pontoon and install the tank on the middle of the Trawler Wharf. b) Install a bowser on the existing Marina fuel berth, and install the tank in a visually unobtrusive location at the edge of the Marina car park. Viability: Fuel companies have reported that the likely sales volume may be too small to repay the costs. In simple terms these are; a) the fixed costs of repaying the investment in infrastructure (tank, conduits, bowser), b) the variable costs of working capital tied up in stored diesel, c) the variable costs of fuel transport and other fuel supply operations, and d) back office overheads and profit contribution. If the fixed costs of repaying the investment in infrastructure (tank, conduits, bowser) were reduced, fuel supply could potentially be viable. This Master Plan proposes that government invest in some of the fixed infrastructure to enhance viability to the point where a fuel company would invest in water level fuel supply. Government could invest in those relatively passive components with a longer life and lower regulatory risk, such as the storage tank and buried conduits on public land. The fuel company could invest in operating components, such as the bowser/pump/billing technology. It would lease and maintain the government’s assets and warrant their regulatory compliance. Commercial terms: Mandating the bowser operator with exclusive rights to all fuel sales in the Local Port would raise issues of competition policy and is not envisaged in this Master Plan. Notwithstanding, many ports in Australia do grant a nominated operator with exclusive rights to all fuel sales. To address the risk of monopoly pricing, these are sometimes based on common user pricing arrangements. Such arrangements can charge buyers a fixed margin on a variable fuel price to finance the infrastructure investment, logistics, and operator margins. The variable fuel price can be by reference to refinery gate prices (for example Geelong Refinery Gate Price). This is not proposed here. This Master Plan proposes that the fuel company is granted a fixed term (say five or ten year) non-exclusive concession, during which the regulatory compliance risk associated with the government owned components are assumed by the fuel company. The fuel company would manage regulatory compliance, maintenance, and customer interfaces including user accounts and user training.
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3.7 Cray fishing fleet Context The southern rock lobster (or cray) fishery is Victoria's second most valuable, after abalone. The fishery is quota managed, with a total allowable commercial catch set annually after the status of the stock has been assessed. Quota units are traded between fishers, and the quota can greatly exceed the value of the boat used to catch it. Almost all of Victoria's commercial southern rock lobster catch is now exported to international markets, shipped alive and chilled to Melbourne Airport most landing in China the following day. The commercial fishery is closed between November and June. Quotas have halved over eight years, and industry consolidation has further reduced the number of boats licenced to access the fishery, meaning the cray boat fleet has halved in size. At the time of writing around ten cray boats landed their catch in Portland Bay. Table 6 - Southern rock lobster Western Zone quotas Year Quota (tonnes) 2014-15 230 2013-14 260 2012-13 260 2011-12 240 2010-11 240 2009-10 240 2008-09 320 2007-08 380 2006-07 450 2005-06 450 2004-05 450 2003-04 450 2002-03 450 Regional economic benefits of a local cray fishery flow from the local employment and investment generated by the fishing and handling of the product. Crays are held in temperature controlled tanks after landing to allow suppliers to take advantage of the highest spot prices, and handling this high value product is reasonably labour and capital intensive, injecting jobs and investment into the local economy.
Cray boat berthing Cray boats berth in various places in Portland Harbour. The majority of cray boats (around nine) berth on the Fishermens Wharf located along the canal, with one or two craft in the marina. The Fishermens Wharf was sold to Port of Portland Pty Ltd with the sale of the Port of Portland and it is now privately owned, accessible only through Port of Portland property. The Portland Chip Terminal hardwood chip stockpile sits beside the wharf, and boat owners report that wind sometimes carries a resinous dust from the stockpile onto the adjacent cray boats, which sticks to exposed surfaces until washed off. The Fishermens Wharf is becoming progressively more decrepit with age to the extent that it is now closed for half its length for boat mooring. It appears that without reconstruction the Fishermens Wharf will become too decrepit for use as boat mooring in a few years. Port of Portland Pty Ltd indicated during consultation that the Fishermens Wharf precinct (including adjacent roadway and car parking) is required for its port operations, particularly truck movements associated with plantation forestry exports, and that this use is inconsistent with boat mooring so the medium term objective is to relocate the cray boats elsewhere within Portland Harbour.
Consultation Portland Bay cray fishers were consulted on their needs for the preparation of this Master Plan. Feedback included the following; With the growth in port traffic, typically B-Double wood chip trucks queueing for the loader, access to the Fishermen’s Wharf is increasingly difficult and sometimes dangerous. Resinous dust from the hardwood woodchip pile represents a significant annoyance for fishers. Its effect on the catch is uncertain, and fishers would prefer that the catch was not exposed to the dust.
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Current fuel supply arrangements in the Port of Portland are generally satisfactory provided the tanker can continue to access the boats at its convenience. The fuel supply arrangements rely on the goodwill of various parties and is not structurally secure. If these arrangements were to change, a fixed bowser or a tanker access arrangement would need to be established elsewhere. Fishers need to be able bring their vehicles near the cray boat, to ensure the safety of the live catch in hot weather. Fishers reported that it would not be satisfactory to have to do trolley trips back and forth to shift the catch long distances down a marina walkway.
Requirements Fuel: Cray boats run on diesel fuel, currently delivered by a rigid fuel tanker by arrangement. Fuel supply is considerably more convenient if the tanker can go to the boat at its berth, rather than the boat arranging to wait for the truck at a certain point. Fuel supply from a suitable fixed bowser berth with high-flow pumping would meet the fleet’s needs, provided the price is competitive. Access: Live crays are taken from the boat to a waiting food transport vehicle. In hot weather this movement places the crays at risk, and so berthing should be readily accessible to vehicles, directly or by trolley. Comparison with services in other ports reveals handling practices elsewhere in the cray industry. While most of the nearby Port McDonnell fleet is on swing moorings in the harbour they load the live catch into tenders which are then pulled from the water and towed through the streets straight to holding tanks. Maritime servicing: Cray boats periodically need maintenance and servicing. Smaller cray boats can be pulled from the water on large purpose-built wheeled cradles at boat ramps in other ports such as Port McDonnell, and are removed from the water during the off season. In Portland Bay cray boats can be serviced on the slipway owned by Port of Portland Pty Ltd on commercial terms. If done locally, servicing the cray boat fleet brings an economic benefit to Portland.
Masterplan proposal In anticipation of the expiry of the Fishermen’s Wharf the Master Plan includes berthing arrangements for the cray fishing fleet. Three potential solutions are proposed, each involving an extension of the Trawler Wharf. Trawler Wharf Extension Scheme A: The cray fishing fleet could be accommodated with a full width extension of the Trawler Wharf and floating landing, matching the current design. This would also meet other shipping and marine servicing needs in the harbour. Trawler Wharf Extension Scheme B: The cray fishing fleet could be accommodated with a finger extension of the Trawler Wharf and floating landing. This would also meet other shipping and marine servicing needs in the harbour. Trawler Wharf Extension Scheme C: The cray fishing fleet could be accommodated in a small extension of the Trawler Wharf’s floating landing, together with the construction of stern-in finger berths. Each of these arrangements are shown diagrammatically in the section discussing the Trawler Wharf. The Master Plan retains the cray fishing fleet in the commercial shipping zone of the harbour. It does not propose the relocation of the cray fishing fleet to the new Marina on the basis that vehicle access arrangements are poor (for fuel supply and safe handling of the live catch), and bringing a commercial fishing fleet into the Marina raises issues of compatibility with other Marina users.
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3.8 Trawler Wharf Context Figure 21 - Trawler Wharf The Trawler Wharf is 268m long. Large vessels berth on the eastern side where the water is 4m to 5m deep at chart datum. The Wharf accommodates Portland's trawler fishing fleet and itinerant vessels. In 2008 a $14m redevelopment upgraded the existing trawler wharf, effectively doubling its length to berth around 9 vessels, some of which can be up to 300 tonnes. The Wharf has a separate, 100m parallel floating jetty to accommodate smaller vessels. The Wharf is reserved for the commercial fishing industry and from time to time accommodates other vessels. The Wharf is capable of parking multiple B-Doubles alongside the fishing vessels. Nearly 40% of Victoria’s wet catch is landed on the Wharf, worth around $30m. Six deep sea trawlers have permanent berths on the Trawler Wharf, and four other large commercial fishing vessels berth on the Trawler Wharf pontoon. Several large commercial fishing vessels have now become permanent visitors, together filling all berths on both sides. The trawlers typically work fishing grounds from Portland down the west coast of Tasmania to the Southern Ocean. They undertake regular and ad hoc maintenance in port, and in doing so contribute to the local economy. They require the Trawler Wharf to offer access for large cranes, large tankers, and large food transport vehicles. At times they need capacity stern-in from the end of the Wharf to extend their lines and nets for repair. A healthy marine services sector ensures Portland remains an attractive home port for Trawlers. Trawlers typically hold around 20,000 litres of diesel fuel which gives them strong buying power. They would be expected to continue to negotiate their own fuel supply directly with road tankers, but may use a fixed bowser if a large enough tank is provided on the Trawler Wharf and if the price is competitive. The Trawler Wharf enables Portland to host visiting commercial/industrial shipping undergoing ad hoc maintenance and repair, and benefits economically as a result. Portland benefits from shipping in the region for Otway Basin oil exploration, wave energy research, marine ecology research, in transit to other ports, and for other purposes. Recent ships visiting the Wharf for marine services include the following.
R.V Whale Song (a 28m ice rated research vessel) one of many marine ecology research vessels laying up in Portland for services and passenger transit.
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The King Bay (a 34m Western Australian harbour tug) is typical of the large industrial shipping accessing Portland for marine servicing. King Bay received extensive marine servicing while in Portland.
The visit by Australian-built replica of James Cook's HMB Endeavour is representative of the large non- industrial vessels berthing at the Trawler Wharf.
The Trawler Wharf is accessible to B-Double fuel and freight articulated vehicles, and large cranes to provide marine services to visiting ocean going ships.
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The Glenelg region is missing out on economic opportunities Figure 22 – MV Statesman in Bass Strait because the Trawler Wharf is full. For example, while this Master Plan was being prepared the main Bass Strait livestock shipping company, LD Shipping, requested space on the Trawler Wharf for the regular transit of livestock, but were turned away for lack of space. LD Shipping transport sheep, beef and dairy cattle between Stanley in northwest Tasmania, King Island, and the mainland (where they have been landing at the more distant Port Welshpool). Coastal shipping like LD Shipping’s MV Statesman (shown right) is typically too small for the larger Port of Portland to be a commercially viable port.
In consultation, LD Shipping reported that they (currently) need to dock up to three times a week in Portland, with livestock going both directions. This represents a lost opportunity for local agribusiness and transport companies in livestock handling and processing.
Trawler needs Berths – The Trawler Wharf is frequently full to capacity, leaving no berths for itinerant or opportunistic vessels to access Portland for marine servicing. This constrains the marine servicing sector in Portland. An expansion of the Trawler Wharf would meet and create local demand. Marine Services – Trawlers and other commercial shipping are supported by the marine services sector when in port. A healthy marine services sector in Portland with the work-space to grow the market will attract more commercial shipping to the port.
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Master Plan options Three options for the expansion of the Trawler Wharf are presented in this Master Plan. Scheme A and B potentially extend outside the Local Port and encroach on seabed managed by Port of Portland Pty Ltd, who’s agreement to changes in the port boundary would be required. Figure 23 - Potential Trawler Wharf Extension schemes, Scheme A, Scheme B and Scheme C Trawler Wharf Extension Scheme A: The Trawler Wharf could be extended by the construction of a fixed finger wharf extension, and extension of the adjacent floating pontoon. It is envisaged that the narrower finger extension could be built using pier and beam (i.e. a bridge). It would be wide enough for two vehicles to pass, but not turn. Scheme A does not offer the benefit of articulated vehicle access to adjacent ships, and so does not support the growth in the marine servicing sector in Portland that would be permitted by Scheme B. Bunkering ships from articulated tankers, crane access, and articulated freight transporters would not have any more access than current arrangements. Benefits would flow by the additional flexibility of ships laying up on the current Wharf to release space for those which do.
For the purposes of the Master Plan the extension offers an additional 70m of wharf edge, plus an additional 90m of floating pontoon suitable for the cray fishing fleet.
Trawler Wharf Extension Scheme B The Trawler Wharf could be extended in its current design, being sheet piles backed by earth fill. This would allow the same functionality as the current design, with articulated vehicle access to all ships. For the purposes of the Master Plan the extension offers an additional 110m of wharf edge, plus an additional 130m of floating pontoon suitable for the cray fishing fleet.
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Trawler Wharf Extension Scheme C The number of berths on the Trawler Wharf floating pontoon could be increased relatively inexpensively by the installation of finger berths. The original design of the Trawler Wharf anticipated a finger wharf scheme similar to that proposed here, and so is included for completeness. A rearrangement of the Trawler Wharf floating pontoon addresses the cray fishing fleet’s needs. Smaller cray boats would moor stern in and load over their side or stern. This solution offers the cray boats wharf edge access similar to current arrangements. Their vehicular access would be improved by removing the current need to join the B-Double woodchip loader queue in the Port of Portland, and the cray boats would be more distant from the woodchip pile. It does not address the space constraints on visiting shipping. It would also displace the four large commercial fishing vessels which currently berth on the pontoon, and so is not a total solution by itself.
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3.9 Cruise liners Context Portland Bay receives several cruise ship visits per year. The liners berth in the Port or Portland rather than the Local Port, however the company and passengers use the Local Port for tourism and other services when in port. Economic benefits of cruise ships
The cruise liner industry can bring material economic benefits to a Figure 24 – P&O Pacific Pearl in 2015 region. The cruise ship industry is growing. According to Deloitte11, the total economic contribution to Victoria is modelled to increase from $60 million in 2010-11 to over $233 million in 2019-20. This growth reflects a change in the perception of cruise tourists from the wealthy or young singles (party cruises) to a broader demographic, who may be better suited to the attractions of the Victorian south west coast. To the extent that this Master Plan can support the attraction of cruise ships to Portland it will support economic development in Portland. For example, support for the growth of the charter boat sector increases the day trip options for cruise liners in Portland.
11 The economic contribution of the cruise sector to Australia. Carnival Australia /Deloitte Access Economics 2012
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3.10 Marine services sector
Context Figure 25 – Trawler on the Slipway Portland’s marine servicing industry provides a range of services to shipping, creating jobs and activity in the regional economy. Large vessels in the Port of Portland Pty Ltd require marine industrial services typically on short notice. Most significantly, bulk carriers can require urgent cleaning of the hold between cargos, done by an appropriately qualified and ticketed workforce. Commercial shipping (from trawlers to cargo vessels), and the Port of Portland, sometimes require steelwork design and fabrication and other manufacture locally on short notice. And all shipping and port facilities require regular ongoing maintenance. These activities support a number of industrial engineering companies in Portland, ranging from Keppel Prince Engineering to smaller players, together an important part of the regional economy. An expansion of marine servicing infrastructure will support the growth in the Local Port, and growth in the Local Port will support growth in the contribution marine servicing makes to the regional economy.
Portland Marine Services Precinct Figure 26 – Marine Services Precinct Portland slipway is a 300 tonne slipway which can accommodate vessels up to 40m long with beams of 9m. The slipway is on land owned freehold by the Port of Portland Pty Ltd, leased for some years to a marine engineering services company. It provides services to vessels in the Local Port and the Port of Portland, with a range of ship repair and maintenance services and facilities available on site. The Portland Slipway is the largest slipway in Victoria west of Port Phillip Bay, and the precinct has the potential to support growth in Marine Servicing in Portland. The large size of the Portland Slipway makes it impracticable to work on small craft on the slip, and current commercial arrangements for the slip also make works by the boat owner impracticable. The nearby Port Fairy slipway is small with a maximum draft at the slipway jetty of approximately 2 metres. It is sometimes booked up to a year in advance, and in any event emergency servicing of boats with permanent Port Fairy berths takes precedence over bookings. Inadequate access to Victorian slipways means ocean going vessels from all ports in Victoria frequently travel to Tasmania for marine servicing, typically either Mersey Slipways in Devonport for vessels to 35m long or the large Southern Marine Shiplift Syncrolift in Launceston (a lifting platform 60m long, 18m wide, maximum displacement of 3100t).
Consultation The owner of the Marine Services Precinct land, Port of Portland Pty Ltd, indicated that the land was required to allow the potential for future growth in the Port, and to provide a buffer between the Port and incompatible adjacent uses, and so they have no plans to offer the land for sale. At the time of writing Port of Portland Pty Ltd was considering its options for the site and no plan for its use had been settled. Feedback from owners of boats ranging in size from leisure craft to deep sea commercial vessels revealed that the ability to remove vessels from the water is very important in making the Local Port an attractive place from which to operate. Owners of smaller boats, commercial and leisure, reported a desire to work on their own craft themselves, which they said was impracticable under current arrangements. Owners of all types of boats expressed a
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desire for greater competition in the marine servicing market. Some owners asked that the slipway move to a common access arrangement allowing them or other tradespeople to service boats once slipped, or an arrangement where more than one business could access the slipway.
Some boat owners suggested that a straddle crane be procured to allow Figure 27 – 150t straddle vessels to be removed from the water and placed in a cradle in a common user precinct, as is the case in many other marine servicing precincts. Boat owners pointed to Queenscliff Harbour’s 150t straddle (shown right), but suggested Portland’s 300t slipway means Portland could benefit from one around a third of that capacity. More research is required to establish the optimum size.
Master Plan Proposal The Marine Services Precinct is owned by Port of Portland Pty Ltd so plans for its use can only come from them. This proposal is offered for the purposes of discussion. The Marine Services sector in Portland could be promoted under various models. Under one model a precinct manager leases or licenses the Marine Services Precinct from Port of Portland Pty Ltd and then sub-leases (as head lessor or owner’s agent) parts of the precinct to industrial tenants, each with access to the slipway under arrangements managed by the precinct manager. This model reflects the manner in which local government owns sports or cultural facilities and arbitrates access of users, which offers a potential precedent for the precinct manager to be Glenelg Shire / Local Port of Portland Bay. The straddle crane could potentially be procured with funding from the Australian or Victorian governments, reflecting the local economic benefits of a healthy marine services sector. The Marine Services Precinct would need some capital works to maintain the slipway winch and rails, accommodate a straddle crane access over water, and potentially improve the quality and environmental management of working areas. If the land owner and Shire endorsed such a proposal the investment would need to be supported by a business case setting out the proposed arrangements in detail, and quantifying the costs, likely growth in marine servicing and the economic benefits for the local community. The rights of the current tenant would also need to be properly accommodated.
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3.11 Town Jetty Context In general, access to a jetty significantly enhances the experience of a harbour, and a jetty typically defines the focal point of a waterside urban realm. Jetties allow those without a boat or a desire to swim to access a harbour and engage with its environmental values through casual strolling and fishing. These activities are important socially (they improve our social and emotional well-being) and economically (they attract visitors and support the visitor economy). For several years the Local Port has had three main jetties, as follows; Trawler Wharf. A working deep sea commercial shipping wharf, it is not compatible with casual leisure use. Marina. In daylight hours the Marina is open to the public. Fishing is not permitted from the Marina due to its incompatibility with boat mooring. Old Marina Jetty – condemned and closed for demolition. Narrow walkways line the north and south boat ramps to assist the launching process and for landing boat crew. The Lee Breakwater (owned and controlled by Port of Portland Pty Ltd) also offers some aspects of the jetty experience when it is open, although it is too long and too distant from the town to be within normal walking distance of the foreshore precincts and so typically represents a car based activity. Of the three jetties only the old Marina Jetty has provided all people, at all hours, access to the harbour to engage with its environmental values through casual strolling or fishing. There is a social and economic logic that calls for the replacement of the old Marina Jetty with a contemporary Town Jetty. Consultation In November 2015 Council issued a public call through the Portland Observer for submissions of designs for a potential new jetty to replace the condemned old Marina Jetty. Nine submissions were made which addressed the issues of design, location, materials, and use, summarised below.
Design and Respondents appeared to prefer a design with sufficient width to accommodate seats and location fishing zones without obstructing the passage of walkers. Respondents were concerned to ensure the opportunity for good public architecture was not wasted. Respondents preferred a location close to the old Marina Jetty. Themes in the consultation feedback included that a new jetty should; have a wide and stable deck be the shape of a 'T' or a curved 'half moon' reference to the heritage places of Portland’s marine environment through interpretation panels – text and photographs to tell the story of the port’s development be built in the same place as the existing be of the same length as the existing include an area or platform off the jetty where the seals could sun themselves
Materials There is no single view amongst respondents on the preferred material. Themes in the consultation feedback included that a new jetty should; include bluestone as representative of the early port be a floating pontoon type already in use in the harbour as unaffected by tide and pleasant to walk on. be constructed of timber decking
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Use Respondents variously called for the jetty to accommodate every use however some do not fit well in the same area (for example, fishing is generally incompatible with swimming and berthing). Themes in the consultation feedback included that a new jetty should; allow public accessibility with an emphasis on a wide and stable deck with public spaces suitable to fishing, swimming and recreation provide an area for youth to swim, play and hang out…at least one anchored pontoon a small distance from a jetty accommodate the small wooden crafts that are prominent in Portland’s Marine-scape, with specific reference to the need for low movement (non-floating) design for such crafts. incorporate a swimming enclosure with diving platforms, rafts and easy access to and from the water for young and old users be a multi-purpose jetty to cater for the boating, fishing and passive recreation
Issues raised by the provision of swimming facilities Swimming is permitted from Nun’s Beach, Henty Beach and other places, and aside from the lack of an opportunity to dive into deep water it is generally well served in the harbour. However where authorities provide swimming facilities legal precedence requires they exercise a duty of care which includes ensuring the facilities are suitable for their intended purpose and incorporate things learned from past findings. If the proposed Town Jetty were to facilitate swimming Council has advised it would have similar requirements to that of a swimming pool. Swimming pool requirements include signage, depth control, age of users, emergency preparedness, managing the interaction with other users, monitoring of condition, cleaning of slippery surfaces, and others. These requirements raise issues of operating costs for Council to consider as part of its budgeting process were the proposed Town Jetty to facilitate swimming.
Master Plan proposal This Master Plan includes a proposal for a new Town Jetty, with the following attributes; A design of the quality which reflects its prominent location on the Portland foreshore, and its role as a focal point for casual visitors. Reach out past the adjacent boat ramp walk ways to deeper water in the region of 150m to 200m, it need not be as long as the old Marina Jetty. Enable passive recreation for people of all abilities (including prams and wheelchairs), such as fishing and strolling. Provide places for people to fish without obstructing other users. Provide places for people to sit. Provide tap water for fishing cleaning purposes. Provide lighting for safe passage at night. Swimming and tying up of boats (either temporary or permanent) would not be permitted as incompatible with other uses. Construction material to offer best value-for-money, while achieving good urban design, which could be floating pontoons or pier and beam construction, noting that a moored floating concrete pontoon system generally offers better value for money than fixed pier and beam.
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Look and feel A Town Jetty fabricated from large floating pontoons might have the following general look and feel.
Potential Town Jetty design schemes Two potential layouts for the Town Jetty are shown below, each offering seating, fishing areas, lighting, and water. Scheme A offers a 3 metre width walkway with outstands for fishing. Scheme B offers a wider 4 meter width walkway. Figure 28 - Potential Town Jetty layout schemes, Scheme A and Scheme B
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3.12 Other opportunities for Portland Bay Context Consultation with parties with an interest in Portland Bay revealed a number of other opportunities for enhancing its amenity and value. Some of these opportunities border the foreshore Master Plan, and should be considered in that context.
Heritage Wharf
Portland has a rich maritime history and Portland’s local Figure 29 – Portland’s heritage Whale Boat community is active in ensuring this history is understood and preserved for future generations. Glenelg Shire’s Maritime Discovery Centre on the foreshore supports the community’s aspirations in presenting knowledge of that history. The museum includes permanent displays documenting the region’s rich maritime history including whaling, ship wrecks, rescue, navigation and the local fishing industry. It is a living history, with members of the community having funded and built a replica of a whale boat, moored in the harbour (shown right).
Members of Portland’s community have proposed that a heritage wharf be constructed adjacent to the Maritime Discovery Centre, as an extension to its historical display. The wharf would be constructed of heritage materials (bluestone and hardwood timber), and would accommodate heritage vessels such as the Portland’s heritage Whale Boat. A heritage wharf constructed adjacent to the Maritime Discovery Centre would be consistent with this Master Plan, noting that the business case for its development is unlikely to be as strong as those for the other elements of this Master Plan.
Foreshore Walkway Members of the community proposed the development of a walkway linking the two boat launch ramps, with a bridge over the lagoon mouth. This proposal would be consistent with this Master Plan, however it represents foreshore infrastructure more than marine infrastructure and so is not addressed here.
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4 MASTER PLAN
4.1 Chapter summary This chapter summarises the proposed Master Plan.
4.2 Guiding principles for coastal infrastructure Designing on the coast12. The fundamental principles of good design remain important, as when designing in cities, suburbs or remote settings, but on the coast an approach that considers the following specific issues is vital: coastal culture and the appropriateness of new built form for the existing character of the place; protecting significant views of waterways and from waterways; the coastal environment and coastal landscapes as a dominant setting; the spaces around buildings and maintaining the coastal landscape between towns along the coast, avoiding ‘ribbon’ development; continuity of the built and natural public realms; effects of extreme coastal weather on the built environment and outdoor spaces; and effects of different use-patterns and seasonal occupation.
4.3 Foreshore planning precincts and marine zones. The Master Plan usage zones match land uses nominated in the Shire’s Portland Bay foreshore land use planning. Unlike land use precincts, ocean areas do not have fixed boundaries – users cross invisible boundaries without knowledge. So this Master Plan includes marine zones which reflect their adjacent land use precincts. The following image shows the land use zones nominated in the Shire’s Portland Bay foreshore land use planning, and the proposed marine zones adopted in this Master Plan. The marine zones are: North Boat Ramp Marine Zone Marina Marine Zone Civic Foreshore Marine Zone South Boat Ramp Marine Zone Henty Beach Marine Zone Commercial Shipping Marine Zone Marine Services Precinct
12 Good Design: The Coast. The Office of The Victorian Government Architect.
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Figure 30 - Marine zones
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4.4 Portland Marine Master Plan The Master Plan summary is as follows: Table 7 - Master Plan summary Item Proposal
Southern Bluefin Tuna Support visitor economy services flowing from tuna fishing with access to fuel Fishery and berths, and an over-water fish weigh station gantry
Charter Boat Sector Support charter boat sector with access to fuel and berths
Portland Bay Marina Expand Marina to allow growth in the visitor economy services in Portland Bay
Fuel Supply Provide a fixed bowser fuel supply at water level
Cray Fishing Fleet Provide new berths for displaced cray fishing boats on Trawler Wharf
Trawler Wharf Expand Trawler Wharf to support growth in the marine services sector and accommodate Cray Fishing Fleet
Cruise Liners Promote access to visitor economy services in Portland Bay to enhance its attraction to cruise liners
Marine Services Sector Support Port of Portland Pty Ltd in enhancing competition, diversification and growth of the marine services sector
Town Jetty Provide a new Town Jetty to support the visitor economy services in Portland Bay
The following drawings presents the Portland Marine Master Plan in diagrammatic form.
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Figure 31 - Portland Marine Master Plan
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APPENDICES
Appendix A - Master Plan drawings Town Jetty Town Jetty Scheme A Town Jetty Scheme B
Trawler Wharf Trawler Wharf Scheme A Trawler Wharf Scheme B Trawler Wharf Scheme C
Marina Marina Scheme A Marina Scheme B
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