public open space plan

Shoalhaven City Council Public Open Space Plan

Adopted February 2008 File No 12579-02

TABLE OF CONTENTS

1. BACKGROUND............................................................................................................... 1 1.1 INTRODUCTION............................................................................................................ 1 1.2 WHAT IS PUBLIC OPEN SPACE..................................................................................... 2

2. ROLE OF PUBLIC OPEN SPACE................................................................................ 3

3. MAJOR ISSUES AND FINDINGS ................................................................................ 4 3.1 GENERAL .................................................................................................................... 4 3.2 PASSIVE OPEN SPACE.................................................................................................. 5 3.3 ACTIVE OPEN SPACE................................................................................................... 6 3.4 MANAGEMENT AND MAINTENANCE............................................................................ 7

4. PLANNING AND MANAGEMENT PRINCIPLES .................................................... 9

5. OPEN SPACE DEMAND IN THE SHOALHAVEN ................................................. 11 5.1 POPULATION PROJECTIONS FOR THE SHOALHAVEN LGA.......................................... 11

6. DEVELOPMENT REQUIREMENTS FOR FUTURE RECREATIONAL OPEN SPACE PROVISION ..................................................................................................... 13

6.1 REQUIREMENTS FOR FUTURE PASSIVE RECREATIONAL OPEN SPACE PROVISION...... 13 6.2 ACCEPTABLE LAND FOR PASSIVE RECREATIONAL LOCAL OPEN SPACE FOR PARKLAND ................................................................................................................ 15 6.3 REQUIREMENTS FOR FUTURE ACTIVE OPEN SPACE PROVISION ................................ 16 6.4 UNACCEPTABLE LAND FOR ACTIVE RECREATIONAL OPEN SPACE............................ 18 6.5 REQUIREMENTS FOR FUTURE NATURAL OPEN SPACE ACQUISITION ......................... 18 6.6 INSPECTION AND LAND CONDITION REQUIREMENTS................................................. 19

7. MEETING FUTURE ACTIVE OPEN SPACE NEEDS............................................ 21 7.1 RATIONALISATION OF OPEN SPACE........................................................................... 21 7.2 DISPOSAL OF OPEN SPACE......................................................................................... 22 7.3 ISSUES TO BE CONSIDERED IN THE ACQUISITION OF PUBLIC OPEN SPACE ................... 22

8. FUNDING OPPORTUNITIES AND CONSTRAINTS.............................................. 24

8.1 BUILDING PARTNERSHIP WITH OTHER MANAGERS OF OPEN SPACE .......................... 24 8.2 FUTURE MAINTENANCE ISSUES................................................................................. 25

9. STRATEGIC RECOMMENDATIONS AND ACTIONS.......................................... 28 9.1 INTRODUCTION.......................................................................................................... 28 9.2 MANAGEMENT STRATEGIES AND ACTIONS ............................................................... 28

Appendix 1: A summary of relevant Shoalhaven City Council Policy and Planning documents and implications for the Open Space Plan Appendix 2: Sport/Recreation Preferences by Age Group Appendix 3: Figure 1 – City of Shoalhaven land use and tenure

1. Background GHD Consultants were commissioned in 2005 to undertake the Shoalhaven Public Open Space Review. The work undertaken critically examined the use, supply, demand and distribution of Council’s managed recreational open space as well as the legislation and policies that guide its management, development and maintenance. This Plan is based on the work undertaken by GHD and examines the provision of public open space, particularly the lands managed by Shoalhaven City Council, which include parklands, sportsgrounds, natural areas and areas for general community use. Shoalhaven City Council’s Management Plan 2007-2010 identified improving Community Facilities and Services as one of its 6 Principle Activities with the stated objective of “Lifestyle to foster a diversity of educational, cultural, social and leisure activities to enrich the lifestyle of residents and visitors”. The Public Open Space Plan is Council’s overarching strategic and policy document for the city’s future open space network and provides a framework for all relevant open space policies and documents which are summarised in Appendix 1. 1.1 Introduction Public open space plays a vital role in sustaining the social and environmental qualities of local communities. It provides a common ground for shared experiences, social interaction, play, sporting and cultural activities that extend beyond private places into the public domain. Quality public open space enhances quality of life, adds to social capital and encourages and supports physical activity. Shoalhaven City Council is faced with the prospect of an ageing population, new working patterns and changing household profiles, together with overall social changes in children’s physical activity and family activities. The consideration of the future provision of adequate open space requires consideration of the current and future needs of all sectors of the community. There is a network of public open spaces along the coast that preserves significant areas of natural bushland, coastal ecosystems and urban open spaces. The network has developed since the 1850s in recognition of the basic needs of all members of our community to access open spaces for physical, emotional and spiritual development and well being. The area administered by Shoalhaven City Council covers an area of 4,570 square kilometres. It extends approximately 110km from the southern boundary at North Durras to the northern boundary north of Berry and extends inland to include Kangaroo Valley with approximately 160km of coastline. See Figure 1.

SHOALHAVEN CITY COUNCIL PUBLIC OPEN SPACE PLAN – FEBRUARY 2008 1

The resident population as at the 2001 Census for the local government area was 87,650 persons. The estimated current population in 2006 is 95,590. During summer holiday periods the population can average 200,000 persons and reach 320,000 at peak holiday times which relates to the attraction of the extensive coastal and natural assets found in the Shoalhaven (Ref: Tourism in the Shoalhaven, SCC July 2005). A summary of the relationship of demographics to public open space provision is included in Appendix 2. 1.2 What is Public Open Space Shoalhaven City Council has large freehold land-holdings which are required to discharge Council’s responsibilities under the Local Government Act 1993 in order to provide an appropriate level of amenity and services to the community. At the time of writing this Plan, Council managed a total of approximately 5,525 hectares of open space consisting of 2,750 hectares of Council owned community and operational land. In addition to Council owned land, Council also manages 2,775 hectares of Crown land (Ref: Shoalhaven City Council GIS figures). The management of Crown land is undertaken through either the divestment of care, control and management by State Government to Council, or in Council’s capacity as Trustee of Crown land. Over 1,550 hectares are intensively maintained by Council. This network includes over 800 parks, 120 playgrounds, 52 sportsgrounds including 86 fields, walking tracks, BMX circuits, 6 skate parks etc. The balance consists of natural areas such as bushland, wetlands, escarpment and foreshore areas that are generally in a natural state and have low use. The approximate amount of land in each category of use is summarised as follows:

• Parkland - 195ha • Sportsground - 192ha • General Community Use - 67ha • Natural Area - 1,096 ha in total including:

o Bushland - 710ha o Wetland - 186ha o Foreshore - 87ha o Escarpment - 56ha o Watercourse - 17ha

• Dual category land – 115ha

Open Space considered in this Plan consists of both passive and active recreation types of space. Active Space allows for organised and formal sporting activities and includes sports fields, ovals, outdoor hard courts eg netball, tennis, showgrounds and generally all outdoor sports. Passive Open Space provides by default for all other recreational uses both sedentary in nature and informal activities not associated with organised sport. Some open space managed by Council has no useful recreational purpose and is used for operational purposes such as drainage reserves and corridors for public utility easements and public utility infrastructure. Most of these are classified as community land for general community use.


2. Role of Public Open Space Council’s role in the planning, management and maintenance of public open space lands and facilities is undertaken through various functional groups of Council. Tasks undertaken by Council include:

• Management and the provision of strategic direction for Council’s parkland, pathway and cycleway network, sportsgrounds and associated recreational facilities, including the management of specialist public recreational and sporting centres such as swimming pools and leisure centres;

• The design, project management and provision of maintenance services for all recreational passive and active open space;

• The management of the City’s natural area open space network including natural areas; and

• Establishment of a planning framework for the provision of open space for the City, and in particular, developer contribution arrangements for the level, extent and location of future passive and active open space.

Public open space areas receive very significant use in peak tourism periods (such as school holidays and public holidays) and play an increasingly important role in contributing to the identity of the LGA, provision of tourism opportunities, social benefits as well as beneficial economic synergies. Visitors to the Shoalhaven are generally attracted to the water activities of the coast, the national parks, the rural hinterland and other natural heritage aspects of the region. Some open space, owned and or managed by Council, has no useful recreational purpose and is used for operational purposes such as drainage reserves and corridors for public utility easements and public utility infrastructure. Most of the above areas are classified as Community land for General Community Use. Other areas of public open space, such as car parks, are generally classified as Operational land. In addition, significant natural areas of open space owned, and or managed by Council due to their location, or physical characteristics, or environmental sensitivity and values, have limited recreational value as passive open space. Some natural areas are not suitable for recreational uses but provide significant eco-system services to the community through their ecological value. Council is required to manage parcels of Community land such as drainage reserves, Asset Protection Zones, Links and Buffers and areas categorised as General Community Use, that do not provide the community with usable open space for either passive or active recreational activities. These residual parcels of land are difficult for Council to manage effectively and tend to be very resource intensive in undertaking maintenance works. In some circumstances the links and buffer areas do sometimes play a positive role in linking more useful spaces and urban areas and/or providing wildlife corridors.


3. Major Issues and Findings Following a comprehensive review of the current open space portfolio, internal stakeholder consultations and review of the adopted strategies, policies and plans, a number of key issues have been identified. These are outlined under the following sections of general, passive, active, and management and maintenance of public open space. 3.1 General

1. The importance and value of Crown land to the local open space system, and particularly to parklands and sportsgrounds, is recognised. For example, Crown land accounts for 78% of the total area of Icon parkland and 83% of district parks. One third of the City’s 48 sportsgrounds are located on Crown land.

2. There are a number of unresolved Aboriginal land claims over areas of Crown land

in the Shoalhaven which may have implications for future uses of the land for public open space.

3. Park design and improvement works address factors such as the need for water

quality control including stormwater management, monitoring of imported soil and materials, management of soil compaction and erosion, the protection of existing vegetation and habitats and the planting of additional vegetation to improve local amenity and provide shade. Planting of locally occurring native plant species can provide habitat for wildlife and reinforce existing wildlife corridors.

4. A number of key Council managed Crown natural area reserves such as Abraham

Bosom at Currarong are zoned 8(b) under the Shoalhaven LEP as future National Park.

5. Council’s adopted hierarchical levels for both parkland and sportsgrounds are the

basis for open space provision and embellishment.

6. Following the results of the 2006 Census it will be feasible to consider the rationalisation of existing open space which includes options such as changes in recreational opportunities and facilities, additional embellishment, the redevelopment of individual parcels of land or, where appropriate, acquisition or disposal.

7. A number of anomalies have been found between zoning, categorisation and use

indicating the need to undertake a comprehensive review to ensure appropriate correlations.

8. The subdivision assessment process should be reviewed to include the use of bonds

on developers to ensure compliance with approved plans in relation to public open space embellishments as identified.


9. Recent changes to Crown Land legislation provide additional opportunities and

greater flexibility for Council in the management of Crown open space but also provide greater powers to the Minister for Lands to intervene in the management of Crown Lands at a local level. This may mean that it cannot be assumed that all Crown land currently contributing to the Shoalhaven open space portfolio will always be available to Council.

10. Shoalhaven City Council has been keen to develop cooperative arrangements with

other government agencies in the management of local open space. Current examples of partnerships between Council and other Government agencies at the local level include:

a. Co-operation with NSW National Parks and Wildlife Service (NPWS) in

relation to:

• the complimentary fire management and asset protection in the Shoalhaven;

• foreshore land on the northern side of the Shoalhaven River at Shoalhaven Heads to preserve sea bird nesting sites;

• Joint management and maintenance of Bomaderry Creek Regional Park, North Nowra with NPWS.

b. Co-operative management between Council and State agencies in regard to

bushfire hazard reduction across open space within asset protection zones; c. Membership with other State land management agencies such as National

Parks and State Forests on the Shoalhaven District Bush Fire Management Committee;

d. Joint maintenance of Ben’s Walk, Nowra, Bangalee Reserve and Abraham

Bosom Walk, Currarong, with the Department of Lands; e. Co-operative arrangements with local schools (for example Nowra High

School) to provide use of school ovals for weekend and minor sporting usage.

11. There are limitations in the availability and currency of some key data needed for the Plan. For example, no projected population figures were available at the town and village level. Recreational use data for the local area is now over 10 years old and there are no separate tourism figures available for the towns and villages.

3.2 Passive Open Space

1. Icon parkland is generally well supplied both in total area and spatial distribution of the parks throughout the City. The Icon Parks Strategy needs to be reviewed to include consideration for an Icon Park in Planning Area 2 and review the future development of Gateway Park in Planning Area 1.

2. District level parkland is generally adequately supplied with the exception of

Planning Area 5, locations of Conjola Park and Bawley Point.


3. A number of the district parks are foreshore reserves and are very narrow, often less than 30 metres wide. This narrow configuration is not ideal and may restrict the types of activities that can be carried out on the land. In addition, 11 of the parks are less than 0.5ha in area which compromises their ability to accommodate district park level facilities and to provide an appropriate range of recreational opportunities.

4. Council has responsibility for a large volume of natural open space, particularly

foreshore areas together with an increasing amount of environmentally sensitive open space dedicated to Council.

5. Foreshore encroachment and conflicting values of foreshore vegetation in contrast

to preference for water views requires appropriate resolution to ensure environmental degradation does not result from commercial concerns.

3.3 Active Open Space

1. The current Shoalhaven sports facility/sportsground portfolio has a total of 48 separate sportsgrounds with 4 facilities identified and categorised by Council at the Regional level, 3 at City Wide level, 19 District and 22 at the Local level.

2. Currently, 34 sportsgrounds in the Shoalhaven are managed directly by Council,

with the remainder (18) being assisted by Management Committees (with the delegated authority of Council), or through management contracts.

3. The current supply of active open space in the Shoalhaven reflects the Sporting

Facilities Plan 2001.

4. The concept of clustering of sporting facilities in key regional and sub-regional urban areas appears to be working effectively.


5. Land suitability selection criteria for open space currently used by Council needs to be strengthened to ensure that the dedication and acquisition of new recreational open space is suitable for its purpose. Recommended standards and selection criteria for new recreational open space for both active (sportsgrounds), and passive (parklands), are provided together with suggested development requirements (refer Chapter 5). These standards and supply criteria will inform all relevant Council policy documents, including developer contribution plans, and Council’s Subdivision Development Control Plan (DCP 100), in particular.

3.4 Management and Maintenance

1. There are limited opportunities available to develop formal partnerships with other government agencies managing open space. Successful informal partnerships for individual projects and activities exist such as bushfire risk management walking track development.

2. New sources of funding for the open space system are limited which highlights the

importance of fostering and sustaining community partnerships. Existing partnership arrangements exist with local service clubs, ground and park management committees, as well as volunteer groups such as Bushcare and Parkcare, who assist with the management and maintenance of open space.

3. Council continues to add land to its open space portfolio but struggles to find

sufficient funds to adequately manage and maintain it.


4. The rationalisation of Crown reserves managed by Council into five separate

Council reserve Trusts is recognised, and in particular, the additional flexibility provided by these arrangements in the expenditure of reserve revenues across the various Crown land components of the open space network. Council has proposed that these four Trusts will be named the Shoalhaven City Council Foreshore Reserve Trust, the General Reserves Trust, the Showground and Sportsground Reserve Trust and the Cemetery Reserves Trust. It is expected that planning and administrative efficiencies will flow from these new arrangements, which allow for the amalgamation of Crown Reserves that have a common purpose.

5. There may be opportunities under new biodiversity certification and bio-banking

processes contained in reforms to threatened species legislation for Council to have a greater level of flexibility in the development of larger sites for open space purposes. Impacts to biodiversity on certain sites may be offset by positive environmental management actions at another site.

6. Limited maintenance budgets are exacerbated by the scale and widely dispersed

nature of the open space network.

7. There is a need for agreed principles and criteria to use in developing long term financial and maintenance strategies.

8. There are limited cohesive documents that link adopted principles and strategies for

decision making. This Plan provides a comprehensive link to all the relevant adopted documents.

9. Management problems confronted by Council include the illegal removal of

vegetation, encroachments by residents onto public land and vandalism of park furniture and facilities.


4. Planning and Management Principles The following overarching guiding principles, definitions and policy statements provide a strategic basis for Council decision making and also guide the analysis and implementation of this Plan:

1. Planning for public open space will take into consideration the quality, diversity and distribution as well as quantity of open space when providing for the recreation needs of the community.

2. The importance of Crown reserves to the Shoalhaven City Open Space portfolio is reflected in Council’s position to remain as Trustee of Crown lands.

3. National Park and State Forest land complement Council’s Open Space network, however these areas are not considered as part of Council’s provision of public open space.

4. A flexible approach to the provision of public open space be maintained taking into account proximity of other public lands including beaches and foreshores as well as the current and future residential context.

5. Future management and development decisions involving the provision and embellishment of public open space be based on the adopted relevant hierarchy classifications.

6. A shared/multi-use clustering approach be used in the development of future active open space, using co-location of facilities in key areas to minimise infrastructure costs, maximise public access, reduce maintenance costs and minimise impact on residential areas.

7. Council’s minimum development requirements for local, district and Icon Parks are defined in Section 6.

8. The standards and characteristics of land acceptable for acquisition, as well as features that make land unacceptable for passive and active open space use are defined in Tables 1 and 2.

9. The minimum requirement for passive recreational open space for the purpose of future provision is 12m2/person, taking into account an allowance for local, district and Icon Park level open space and 17m2/person for active open space taking into account Citywide, district and local level facilities (Appendix 4 provides an analysis of the context for provision levels). Some merit assessment could enable minor variations (up to 10%) if there are other equal value offsets eg embellishments etc.

10. Rationalisation of community land will be considered when a reserve has limited public access or useability and community land supply in a town or village is greater than the adopted standards.


11. A specific consultation process will be developed for the disposal of public open space, which includes community members who have views or outlook benefits relating to the subject land.

12. Acceptance of environmentally sensitive land will be subject to appropriate mechanisms being put in place for funding, however this land will not offset the defined area and development requirements for open space to provide for passive recreation or active recreation purposes.

13. Co-location of active and passive open space and community facilities at the village level will be pursued where feasible to assist the development of the community centre or hub for social interaction.

14. Where water bodies are created within public open space as components of stormwater management systems, safer by design and water sensitive urban design principles should be applied.

15. Unauthorised discharge of stormwater drainage from private properties onto public open space is not supported. Any stormwater discharge from private properties onto Council managed land must be authorised via the creation of an easement created for the purpose of drainage and the easement is continued to a point where it can legally discharge into an existing easement, water course or other drainage system.


5. Open Space Demand in the Shoalhaven

It is difficult to accurately forecast demand for the provision of open space due to the number of variables involved and the lack of relevant and current data. It tends to be driven mainly by population growth and the impact of changing demographics of the population. These issues are discussed in Appendix 2 of this document. Future demand for open space impacts not only on the provision of an adequate quantity of appropriate space, but it also requires the provision of an appropriate balance of different types of open space that provides opportunities for a variety of different forms of recreation and other uses. Demand is influenced by evolving recreational and sporting needs brought about through changes in the demographic structure of the population and changing leisure trends. The Section 94 Contribution Plan defines the future demand for passive and active open space, taking into account population growth and changing demographic characteristics. The demand for active recreational open space (sportsgrounds) like passive recreational open space is influenced by population growth and demographic changes together with changing use patterns, trends in sport, and levels of participation. The strategy for the supply of active open space is directed through the Shoalhaven City Council S94 Contribution Plan and the Sporting Facilities Plan. 5.1 Population Projections for the Shoalhaven LGA The following Table 1 is an excerpt from population projections prepared by the Planning Group of Shoalhaven City Council at 29 July 2005. Council formally adopted these projections in September 2005. The last population figures at a town or village level were collected in the 2001 census. There are no population projections available at a town and village level for years after 2001. Table 1 Shoalhaven City LGA – Population Projections

Planning Area

Population 2001 (ABS)

Estimated Population 2006




Population Increase 2006-2026

% Growth 2006-2026

Area 1 41,202 43,676 47,319 51,980 61,781 18,115 41.4 Area 2 6,905 7,601 8,095 8,692 9,946 2,345 30.8 Area 3 17,020 19,283 20,736 21,125 24,008 4,725 24.5 Area 4 4,306 4,660 4,806 4,996 5,598 938 20.1

Area 5 18,217 20,370 21,664 22,373 25,409 5,039 24.7 LGA 87,650 95,590 102,620 109,166 126,742 31,152 32.5

(Source: Shoalhaven City Council 29 July 2005)


Over the next 20 years the total population is projected to increase by 31,000 people or 32.5%. It is anticipated that more than half of this increase will be accommodated within the regional centre of Nowra-Bomaderry in Area 1. Other sub regional urban centres in Areas 3 (Bay/Basin) and 5 (Ulladulla) would absorb much of the rest of the growth. The draft South Coast Regional Strategy (Department of Planning 2006) has identified the need for an additional 26,300 dwellings that will be required in the Shoalhaven over the next 25 years. It is anticipated that the majority of these dwellings will be located in Planning Area 1 around Nowra-Bomaderry, and around the urban areas and towns of Vincentia/Jervis Bay/St Georges Basin (Planning Area 3), and Ulladulla (Planning Area 5). Council has released a Draft Occupancy Subdivision Policy to encourage the subdivision of certain lands for dual occupancy residential development in appropriate locations. This Policy has the potential to increase population densities in the nominated locations and therefore increase local public open space demand. Using the recommended figures of 1.2ha/1,000 persons for local passive and 1.7ha/1,000 for active open space would result in a total additional demand of approximately 25.6ha of developed recreational open space for Planning Area 1 and 46.7ha for the whole LGA for the period 2006-2016 based on the Council’s population projections.


6. Development Requirements for Future Recreational Open Space Provision

This section examines a suggested basis for spatial and development requirements and land acquisition standards for passive open space (parks) and active open space (sportsgrounds) in the Shoalhaven, set against the recommended hierarchical levels for these types of Council managed open space. It also establishes a standard for the acquisition of natural areas by Council. The following requirements provide a basis for determining a minimum standard of provision that can be incorporated in future revisions of developer contribution plans and in negotiations when utilising a voluntary agreement or a fixed development consent levy arrangement. It would also be worthwhile to develop realistic layout plans of the various levels of parks and sportsgrounds to graphically demonstrate development requirements and to provide examples of the nature of acceptable lands for future acquisition. 6.1 Requirements for Future Passive Recreational Open Space Provision It is recommended that the existing level of provision of 12sqm per person be retained for the provision of future passive open space. 12sqm is considered a reasonable base standard of provision for passive recreational open space (parkland) and is consistent with other local government areas with similar key characteristics. The catchment for local open space is predicated on a walking time of a maximum of 10 minutes which corresponds with 250 dwellings within 400-800 metres of the park. District parks should be within a 15-30 minute travelling time which would include driving time. This figure does not specifically allow for an area provision for Icon Park level passive open space. This lack of specific provision is offset by the level of informal open space such as beaches and foreshores available to residents throughout the Shoalhaven and the level of area provision at the icon and district park levels. The level of provision may need to be adjusted in some instances to take into account the influence of other variables such as residential density, walking distance and proximity to other usable open space. Development requirements Table 2 provides the basis of area and provision for the various levels of parkland across the City. Details of infrastructure requirements for District and Local Parks are provided as a guide only and would need to be consistent with relevant Shoalhaven City Council policies such as a revised Parks Enhancement Policy, the Playground Strategy and the Generic Plans of Management.


Table 2: Development requirements for parks in the Shoalhaven

Park Level Development requirements

Local Park Defined as primarily serving a local neighbourhood of approximately 250 people, and within walking distance and within a 5-10 minute walking time, 400–800m radius from the local park, of the surrounding residential area.

The infrastructure associated with local parks includes, some playground equipment or infrastructure, minor landscaping reflecting existing vegetation, limited seating, shade, limited paths to enhance the play opportunities and signage. A playground facility will not be provided in land categorised as linkages and buffers.

Local parks should be regular in shape and provide adequate passive surveillance opportunity from adjoining road. They should have good visibility into the park. All major embellishments in the park such as play equipment should be visible from the main access points.

Minimum acceptable area not less than 3,000sqm or 0.3ha unless it adjoins existing open space (some merit assessment could enable minor variations up to 10% if there are other equal value offsets eg embellishment).

District Park A park area of substantial size, which is well developed, offering a broad range of quality recreation opportunities, and that receives a high level of resident and tourist visitation. District playgrounds need to be central to populations of approximately 3,000 people and be sited no less than 2.0km of another park/playground of a similar size if practicable.

Infrastructure associated with district parks includes a range of facilities to cater for a variety of users and recreational activities including toilets, high quality landscaping, BBQ facilities, shade, seating, lighting, bins, signage and paths, car parking, and playground equipment for toddlers, juniors and older children, and a hard surface area for ball games. It should be generally regular in shape, with linear foreshore parks preferably not less than 50m wide.

Topography should be substantially flat and suitable for play, informal ball sports, picnicking and other appropriate recreational uses.

Minimum acceptable area not less than 10,000sqm or 1ha.

Icon Park Icon Parks are not intended to be developed to a single standard but will be developed to a level consistent with user expectations, and the natural setting and special requirements of individual sites.

As a guide, each Icon Park would receive as a minimum, high quality landscaping, public artworks and interpretative signage together with appropriate supporting amenities and user facilities. It should provide excellent access for people of all ages and abilities and vehicles with a substantial frontage to a major road. It should be highly visible and preferably adjacent to a local town centre.


Minimum standards It is recommended that the following operations are carried out prior to the land being dedicated to or acquired by Council for local passive recreational open space:

• The land is to be inspected by Council staff to ensure compliance with basic performance standards;

• A determination is to be made by Council staff in regard to whether any natural or cultural heritage issues apply to the site or adjoining lands including threatened species habitat, Aboriginal archaeological material and so on;

• A determination is to be made by Council staff in regard to whether any drainage works are required;

• Rubbish, weeds, inappropriate vegetation, rocks, and other debris have been removed;

• The land is shaped and drained to an approved plan to make the land suitable for the approved use, and top soiled and landscaped to an approved specification;

• Boundaries such as fencing and vehicular barriers have been installed; • The road frontage constructed according to Council standards; and • Services to be provided as appropriate.

6.2 Acceptable Land for Passive Recreational Local Open Space for Parkland

The following criteria are provided as a guide to land that will not be accepted by Council for dedication for passive local open space for park purposes unless it adds to an existing reserve, or will be added to from future subdivisions to create at least the minimum area:

• Land with an area less than 3000sqm; • Irregular land in which the widest secti on is less than 30m; • Land that does not provide good visibility from local road and potential for adequate

passive surveillance; Land which any part h•

• Land which is substantially covered with native vegas a slope greater than 20%;

etation; ements, which have no

• vision of appropriate riparian zones along

• tilities such as water, sewerage pumping stations, stormwater

• uate access for maintenance vehicles, or for visitor

• dation that is greater than 10% AEP; ring properties for fire risk

ote tha teria does not apply to land that may be suitable as a walking track, or

• Land which contains drainage areas and stormwater easrecreational value but primarily exist as part of a natural watercourse, or for drainage control or stormwater management; Land required to ensure the prowatercourses as per the Department of Infrastructure, Planning and Natural Resources Study, "Riparian Corridor Objectives for selected streams in Nowra Bomaderry", 2004; Land upon which upumping stations, electricity substations, power transmission towers or other similar level infrastructure is located; Land that does not have adeqparking if required; Land subject to inun

• Land whose sole purpose is to form a setback to neighboumanagement.

t the above criNfor open space linkage purposes.


6.3 Requirements for Future Active Open Space Provision Council is currently in the process of undertaking a major review of the Active Recreation component of Council’s Contribution Plan and at that time will re-establish the appropriate level of provision across each of the 5 Planning Areas. However, based on the current level of provision and standards adopted by other Councils, an approximate amount of 17sqm active open space/person (1.7ha per 1,000) would be a reasonable standard for Council to adopt based on current population projections. It is recommended that the level of demand for sporting facilities and active open space be monitored to check against the suitability of the above recommended standard area provision. It is also recommended that the Sporting Facilities Plan be revised to reassess the future rate of provision of active open space. Development requirements The hierarchy and definition of parks described in Table 3 provides the basis of area and provision for the various levels of sportsground across the City.

Table 3: Minimum development requirements for sportsgrounds in the Shoalhaven

Sportsground

Level

Development requirements

Local Entrance road – sealed, kerb, gutter

Car park a minimum of 20 spaces per field * plus disabled parking provision – sealed

Minimum of x1 (if adjoining an existing field/complex) or preferably x2 full sized fields (118 x 76m based on NSW Sport and Recreation Guidelines) North-South orientation of long axis.

Sporting field – including provision of drainage and turf.

Irrigation (subject to geo-technical site conditions)

Floodlights for sporting field – Competition standard (100 lux)

Vehicle barriers to prevent car access to grounds

Toilets x1 male/disabled and x1 female/disabled (per field)*

Canteen (15sqm)

Storage space (18sqm)

Change rooms x1 male and x1 female (25sqm each)* with one shower in each

Spectator shade and seating*

Signage (Name of venue and statutory sign)


District In addition to the above:

Minimum x2 (preferably more) full sized fields (side by side with cricket wicket in the middle between the fields)

Additional parking based on number of fields to the above standard

Mini bus parking area

Additional toilets based on number of fields

Referee room

Seating x8 bench seats @ 3m or tiered equivalent

Training facilities eg nets for cricket

Minimal landscaping

City Wide In addition to the above:

Minimum of x4 full sized playing fields

Bus parking and turn around area

Clubroom (18 sq m)

Footpaths linking car park to amenities and fields

Tiered seating (approx 200 people)

BBQ facilities

Higher level landscaping

Specialist surface for some sports eg synthetic grass for hockey etc

Regional In addition to the above:

Higher level lighting to accommodate television requirements etc 200 lux

Enhanced seating

Fence around ground

*These items may vary subject to site and facility layout

Minimum Standards The essential characteristics of public open space intended for active recreational use should include the following:


• Land that is regular in shape to maximise the number and layout of the playing fields; • Land must be relatively level, with no greater than 1% fall, or the additional cost of

facility provision incurred due to slope of land to be borne by the developer of the subdivision;

• Sporting fields must a have north-south orientation; • Land must be fully serviced, and adequate drainage systems in place; • Land must allow provision for appropriate level of parking and traffic movements to

and from the site, and within the site; • Land should ideally have adequate road frontages to facilitate vehicular and pedestrian

access arrangements. Access where possible should avoid quiet residential streets. Ideally access should be from commuter routes that also provide opportunities for passive surveillance;

• Adequate space to be available for the provision of essential infrastructure and landscape buffers from neighbouring properties to minimise impacts of noise and floodlights when facilities are used at night.

6.4 Unacceptable Land for Active Recreational Open Space Characteristics of land that is not acceptable for active recreational open space include:

• Land that contains drainage areas, stormwater facilities and easements, which have no recreational, value but primarily exist as part of a natural watercourse or drainage control;

• Land required to ensure appropriate riparian zones along watercourses as per Department of Infrastructure, Planning and Natural Resources Study, "Riparian Corridor Objectives for selected streams in Nowra Bomaderry", 2004; Land upon which utilities such as water, sewerage, electricity substa• tions, power stanchions or other electricity-carrying infrastructure is located; Land that does not have adequate access for ingress and egress; •

• Land subject to inundation that is greater than 2% AEP.

It is recommended that the following operations be carried out prior to the land being

• The land is to be inspected by Council staff to ensure compliance with basic

• made by Council staff in regard to whether any natural or

• whether any drainage

6.5 equirements for Future Natural Open Space Acquisition

here possible, natural areas should be linked to provide a continuity of vegetation, to

atural areas will be accepted as public open space by Council, but not in lieu of useable open space provision standards.

dedicated to Council for active recreational open space:

performance standards; A determination is to becultural heritage issues apply to the site or adjoining lands including threatened species habitat, Aboriginal archaeological material and so on; A determination is to be made by Council staff in regard to works are required.

R Wfacilitate viable habitat areas and corridors and more ecologically valuable areas. N


It is not appropriate to set area standards for the acquisition of natural open space however it

recommended that that the following operations are carried out prior to the land being

prior to acceptance to ensure ompliance with basic conditions and performance standards, such as:

whether any natural or cultural heritage issues apply to the site or adjoining lands including threatened

•

isting erosion and other aspects of physical site degradation;

to

•

• ite characteristics

Futur equal a ty of the individual park. As indicated in the current S94 contribution

isdedicated to or acquired by Council for natural area open space. 6.6 Inspection and Land Condition Requirements It is recommended the land should be inspected by Council staffc

• A determination is to be made by Council staff in regard to

species habitat, occurrence of threatened species and endangered ecological communities, existence of Aboriginal archaeological material and so on; A determination is to be made by Council staff in regard to whether any drainage works are required;

• A determination is to be made by Council staff in regard to the need for remediation works to deal with ex

• A determination is to be made by Council staff in regard to the need for and impact of any required removal of trees and other vegetation that may have the potential impact on adjacent residential or other development; Rubbish, weeds, inappropriate vegetation, rocks, and other debris have been removed;

• Old dangerous fencing will not be accepted unless heritage listed; Fencing and any other safety barriers have been installed;

• Natural waterways, wetlands, escarpment, and other natural sassessed.

e d velopment action in urban areas should mainly focus on the improvement of the nd useabiliity

plans, monies should be more generally spent on embellishment and enhancement of existing parks rather than the acquisition of new land. For example, parks with drainage constraints may be able to be redeveloped to more usable space by incorporating the drainage line into the design of the park through reshaping the land and by establishing retention ponds and water features and boardwalks. A good example of a successful solution incorporating drainage characteristics into the design of a local park is the Howell Faulks Reserve at Cambewarra.


7. Meeting Future Active Open Space Needs The major issue in making provision for the future active open space needs of the City is the early identification of land suitable for use as sportsgrounds, and which take account of the relevant development needs, and location and other criteria outlined in this Plan. Existing environmental constraints in particular, pose significant problems for Council in the identification of future development areas. The introduction of the concept of Biodiversity Banking and Certification may provide a greater level of flexibility in the utilisation of particular larger sites through the provision of environmental benefits or offsets in other areas. There is limited potential for the utilisation of school outdoor sporting areas for minor weekend sports usage. Issues of after hours security, and assistance with maintenance, would need to be resolved between the school, Department of Education and Council. Some school sporting fields such as Nowra High and Shoalhaven High are already in Council’s sportsgrounds system.

7.1 Rationalisation of Open Space

Shoalhaven City Council, like many other local government areas, has been left with a legacy of numerous, very small local parks scattered throughout the urban area, as a result of previous subdivision patterns. Many of these are under utilised, have minimal facilities, have no particular function, and are inefficient to maintain. The work undertaken by GHD has identified a number of towns and villages which have excessive passive open space at the local level and which are recommended for rationalisation by Council. The draft work will be reviewed when the 2006 Census information becomes available. In this context rationalisation fundamentally means making a decision in regard to whether parcels of land should be sold, which parks should be enhanced and which parks should be modified to better meet the needs of local residents. The decision for disposal or retention would need to be undertaken on the basis of vocational suitability and performance issues such as ease of access and surveillance, cost of maintenance, condition and the extent of existing equipment, facilities and landscape, together with the type and level of use. Other issues such as the level and type of usage as well as the civic, environmental and aesthetic significance of the land should also be taken into account. There is also an opportunity to reclassify from Community Land to Operational Land, those areas of open space that do not provide the community with usable open space for passive or active recreation pursuits. Such areas would include drainage reserves, Links and Buffers, and areas categorised as General Community Use or that do not serve any community role. This would assist Council in clearly identifying usable open space and the more appropriate utilisation of scarce management and maintenance resources.


7.2 Disposal of Open Space Analysis of the provision of open space indicates that some parcels of land need to be rationalised at the local level and following an assessment process some lands would be recommended for disposal. Council should ensure future active open space acquisition or dedication arising from subdivision and residential developments is usable open space being of a consolidated nature, and at an appropriate scale and quality, and has other essential characteristics and will assist Council in meeting community demands for sportsgrounds and sporting facilities needs. An outline of the process for disposal of Council owned Community Land is as follows:

• Council must take a formal strategic decision that a parcel of land is no longer required to meet the open space needs of the community. This decision is usually undertaken through an internal staff committee and a formal resolution of Council. An independent valuation of the land would also be prepared.

• The land parcel may require rezoning under the Environment Planning and

Assessment Act 1979 or reclassification to operational land under the Local Government Act 1993. Both the rezoning and reclassification would follow normal statutory processes. Reclassification would require a public hearing during the public exhibition phase to decide whether the land may also require subdivision via the Development Assessment process. If this is the case, the Council property team would then market and sell the land. The proceeds of any land sales must be spent or utilised on Council local area open space projects in the first instance, and any surplus utilised on other Council owned open space projects.

7.3 Issues to be considered in the acquisition of public open space This Plan has indicated the need to acquire some passive recreational open space at the district and local levels. There will also be a requirement to acquire additional active recreational open space for sportsgrounds and for other active open space purposes. Most open space is acquired by Council through either a monetary contribution or land provided in lieu of a monetary contribution by a developer in accordance with the relevant S94 Contribution Plan requirements. Land may also be purchased directly by Council or acquired as a parcel of Crown land with Council as Trustee. There have been significant problems in the past with Council accepting land that is not suitable for the purpose of passive and active open space. Before land is purchased, dedicated or accepted by it must be assessed against the requirements of Council’s policies such as the S94 contribution plans and DCP 100 for subdivision design. As previously discussed, both the contribution plans and DCP 100 should be revised to include appropriate standards of provision and performance requirements the acquisition of new land. The subdivision assessment process must include the use of appropriate planning tools to ensure the acquisition and dedication land that is of an appropriate standard for public open space purposes.


It is recommended that Council should consider the need for the imposition of bonds on developers to ensure compliance with approved plans in relation to public open space and embellishments. It is therefore recommended that before land is dedicated or accepted by Council it should be assessed against a set of adopted minimum standards. All newly acquired land for use as passive or active recreational open space must then be categorised against Council’s open space hierarchy. The land would then be required to be developed to the minimum standards for the different levels of parks (Table 2) or sportsgrounds (Table 3), as defined in this Plan.


8. Funding Opportunities and Constraints Funding the management, development, enhancement and maintenance of open space is a fundamental issue and major constraint on councils when dealing with their open space system. There is a need for councils to manage the community’s needs and expectations to better match funding constraints. For example, the current Shoalhaven Park Enhancement Policy August 2004 is a document that may over-commit Council in relation to its ability to deliver the standards and types of facilities described in the Policy. In order to address continuing funding pressures an examination of opportunities and options for funding outside the council’s normal budgeting arrangements must be carefully considered. These include:

• Redirection of resources from other areas of Council; • Seek grants from other levels of government, particularly for the funding of natural

areas and to assist sport (State and Federal Governments). The Federal Government provides funding for natural areas through the Australian Heritage Fund. Grant funding schemes such as the Capital Assistance Program (NSW Department of Tourism, Sport and Recreation) and the Regional Partnership Program which is Federally funded, are available to assist sport;

• Annual application to the Department of Lands for funding of Crown Reserves from the Public Reserves Management Fund;

• Adoption of user pays arrangements for sporting facilities and extension of existing arrangements;

• Seek corporate funding through sponsorships and or advertising from local businesses; • Continue to develop and implement charging arrangements for the commercial use of

Council land for purposes such as outdoor dining, outdoor retailing, markets and other commercially orientated special events;

• Continue to develop partnerships with Management Committees, community groups such as service clubs, Bushcare, Parkcare and Landcare groups and local community groups to adopt a park, sportsground, or natural area and undertake partial or full management and maintenance responsibilities;

• Establish public/private partnership arrangements where cost effective and practicable.

It is noted that Council has recently adopted e review of the Voluntary Users Contributions Policy which comes into effect July 2007 and provides for eligible sports to receive matching dollar for dollar funding for capital works projects up to $35,000 subject to the limitations of the available funding pool.

8.1 Building Partnership with other Managers of Open Space There are little opportunities for building partnerships with other managers of open space apart from co-operation in management issues such as bushfire mitigation measures and weed control. There may be potential for Shoalhaven City Council to adopt the same classification system for open space bushland areas as used by NPWS in order for a meaningful regional assessment of bushland recreational experiences to be made.


NPWS is seeking to reduce the amount of unregulated camping that occurs in their estate. It was also suggested that Shoalhaven City Council maintain the land bank of open space in the LGA to accommodate the growing population. In this way, even if a demonstrated community need for open space cannot be identified at present or is not anticipated in the near future, the land will be available when such a demand manifests itself in the longer term. At this stage the only foreseeable alteration to the National Park network in the Shoalhaven is the addition of a camping area at Pretty Beach and a day use area at Pebbly Beach. As previously discussed, Council is currently working with the Department of Lands to establish future reserve trust amalgamations and the rationalisation of Crown land management and the utilisation of funding across Crown reserves.

8.2 Future Maintenance Issues Future maintenance costs of open space will be dependent on the amount and type of open space to be managed and maintained and the agreed standard of maintenance provided. Clearly, existing budgets are not coping with the amount of open space and associated facilities. Detailed standards of maintenance are defined by Council’s service agreements and the level of enhancement for district and local parks has been established by the Shoalhaven Park Enhancement Policy 2004. However, there is a need to review both these documents to ensure a level of consistency and to assess the appropriate level of maintenance and enhancement against future budgets. Apart from reduction in some standards the only other option for Council is to reduce the quantity of space managed by either disposal or encouragement. It may also be appropriate to reprioritise the budgets of various components included in the service agreements to focus on key issues such as safety and risk management. Note that the unique nature of individual Icon level parks means that they are not subjected to a standard approach for either embellishment or enhancement. Icon parks are maintained under the service agreement arrangement as a Category 1 Park. Establishing useful and detailed unit costing for maintenance activities has proven difficult. Costs will be dependent on work practices, equipment used and the size and complexity of individual parks and open space. It is recommended that Council build up a database of costs based on a series of trials run over a representative sample of reserves. A number of other issues and practices should be critically assessed in order to improve maintenance outcomes. These include:


• The workability of current Council organisational roles and responsibilities; • Preparation of more detailed budget costing of the maintenance work; • Undertaking detailed audits of facilities provided in local parks to assist in planning

future maintenance programs; • Undertaking detailed audits and regular inspection of the playing surfaces of sporting

fields and assessment of their future maintenance requirements; • Assessment of the efficiency and effectiveness of current maintenance work practices

including maintenance levels and frequency; • Reprioritising the various budgets for the maintenance of components of the open

space system; • Assessment and investigation of alternative types of park maintenance equipment and

plant to deliver greater efficiencies; • Additional training of Council outdoor maintenance staff to maximise efficiencies; • Rationalisation of the level of maintenance within larger individual sites to focus on

key areas; Utilisation • of more standardised and robust facilities and fixtures throughout the Shoalhaven – eg seating, signage, play equipment and so on but allowing for an adequate range of some facilities such as playground equipment to cater for different user needs; Utilising low• maintenance landscape materials and planting such as inert mulches and plant species that require low levels of water and attention; Ensuring that design briefs for new parks and open space f• acilities clearly define the appropriate maintenance level to be utilised; Hardening of critical areas of some sites to re• duce ongoing maintenance.


9. Strategic Recommendations and Actions

9.1 Introduction A series of management strategies, together with recommended actions, associated performance indicators and a nominated priority, have been identified to guide the broad direction of the Open Space Plan as outlined in Table 4 below. 9.2 Management Strategies and Actions Table 4: Management Strategies, Actions and Performance Indicators

Management Strategy Recommended Actions Performance indicators

Priority

1. Ensure the Open Space Plan is flexible

1A Conduct a review of the Open Space Plan every 10 years

1B Reclassify from

Community Land to Operational Land, those areas of open space that do not provide the community with usable open space for passive or active recreation pursuits.

An up-to-date and user friendly Open Space Plan. Compatibility with Council’s capital works program (where appropriate). Consultation with the community to identify changing community needs and preferences.

High/ongoing High

2. Rationalise Council’s approach to passive open space allocation, relative to existing utilisation of open space, usability, and future urban growth.

2A Utilise the parkland open space hierarchy, to avoid inappropriate allocation of open space resources in the future.

2B Identify areas of

passive open space that are not user friendly or are under-utilised.

Shoalhaven’s supply of open space is based on the principles of diversity, location and quality, as well as agreed quantity standards. Rationalisation process completed and decisions taken re the disposal, acquisition of lands, and the embellishment and enhancement of selected existing parks.

High/ongoing High/ongoing


Management Strategy Recommended Actions Performance Priority indicators

2C An assessment be undertaken of the full potential of the economic value, potential ecological and environmental service of open space subject to rationalisation considerations.

2D A specific

consultation process be developed for the disposal of public open space, which includes community members who have views or outlook benefits relating to the subject land.

2E Generally proceeds

of land sales from open space land not now required are to be spent on infrastructure in the local area unless governed by an implied trust where it will be spent on open space projects.

2F The Council

resolution on the financial disbursements from any sale of land be made public information.

All comments made in response to community consultation are considered. Timeframes for information dissemination in community newsletters be taken into account.

Principle endorsed by Council.

Information on disbursements available to public.

High/ongoing

High


3. Rationalise Council’s approach to active open space allocation, relative to existing utilisation of active open space, usability, and future urban growth.

3A Ensure future active open space acquisition or dedication arising from subdivision and residential developments is usable open space being of a consolidated nature, and at an appropriate scale and quality.

3B Develop forward

plans for the acquisition of key areas for future active space (sportsgrounds), which would also include the development of the Wondalga site.

Distribution and allocation of active open space (sportsgrounds and sporting facilities), accords with community needs, where possible. Plans completed.

High/ongoing High

4. Ensure that the future management and use of Crown lands does not adversely impact on the provision of open space in the City and particularly at the town and village level.

4A Maintain liaison with Department of Lands and monitor changes to Crown land legislation, policy and local management.

4B Monitor Aboriginal

land claims for Council managed Crown lands in conjunction with Department of Lands.

Ongoing liaison with Dept of Lands staff. Ongoing liaison with Dept of Lands staff.

Low/ongoing Low

5. Ensure that the future management and development of Crown lands within the open space system are funded in accordance with Council’s Management Plan priorities.

5A Continue liaison with Department of Lands’ staff in establishing the Reserve Trusts and to seek State Government funding for Crown reserves where appropriate.

Establishment of relevant Trusts.

High


6. Ensure the range of risks associated with open space are identified, assessed and controlled in line with Council’s risk management standards and strategies.

6A Continue to develop a risk management strategy for the management of open space.

Preparation and implementation of a co-ordinated risk management strategy for open space management.

High/ongoing

7. Enhance the quality, safety and standard of all open space supporting infrastructure & facilities, including parkland & sportsgrounds.

7A Prepare a strategy for the provision of a range of facilities appropriately located to meet demographic needs of the area.

7B Establish an

affordable system for regular reporting, monitoring and recording the condition of infrastructure in parks and sportsgrounds.

Ensure audits of infrastructure and facilities are integrated into any resource inventory or other audit required under the Local Government Act. System completed and implemented.

Medium High

8. Ensure that environmental considerations are integrated and applied to ensure sustainable open space planning, development and management processes.

8A Adopt appropriate environmental protection, conservation and management strategies for open space areas, and particularly where parks and sportsgrounds adjoin sensitive natural areas.

Development and management of open space supports the environmental amenity of local areas within the Shoalhaven.

High

9. Maintenance of open space is consistent with overall Shoalhaven City Council service provision standards.

9A Review the existing service provisions to ensure realistic budget allocations.

Reviews completed

High


9B Ensure that the maintenance standards adopted for open space reflect use and the adopted levels of service.

9C Where Council

requires any land, a schedule of maintenance be implemented to maintain the value of the property and user opportunities.

Low incidence of recorded complaints relating to open space maintenance, resources and facilities. Maintenance schedules developed.

High/ongoing Ongoing

10. Develop appropriate improvement programs for budget considerations.

10A Determine priority actions for implementation and resource appropriately – including identification of opportunities for further voluntary and community assistance.

10B Seek external

funding opportunities (eg government grants) for open space improvements in line with management priorities.

10C Develop and sustain

public and private sector partnerships particularly with Service Clubs and the various Ground and Park Management Committees to maximise funding opportunities.

Open space in the Shoalhaven is well resources and funded as per the adopted standard. Strategy for supplementary alternative funding is implemented and alternative funding sourced for open space. Extension of current community management arrangements for the open space system.

High Medium Medium


11. Actively promote the range of open space and recreation activities, and health benefits of visiting healthy natural environments, which are available in Shoalhaven City, to increase community and visitor awareness and participation.

11A Expand and improve the promotion of Shoalhaven City’s open space and the opportunities they afford the community through a variety of methods eg. signage, internet, brochures, Council publications, activity programs, events etc.

11B Raise awareness

within the tourist industry of open space areas, opportunities for visitor activities.

11C The PAMP strategy

be regularly reviewed to reflect the increasing importance of cyclists’ use of parks and reserves that adjoin foreshore areas where appropriate and feasible.

Increased community and visitor awareness and participation in open space activities. Community communications strategy and material prepared and distributed. Linkages with the Shoalhaven Tourism Strategy. Increased awareness, use and promotion by tourism stakeholders/ suppliers. Community endorsement of strategy reviews

Low Low High/ongoing

12 Continue to seek opportunities to work cooperatively with other land management agencies in the management of the Shoalhaven open space network.

12A Establish a formal working relationship that includes regular liaison arrangements with representatives of other land management agencies.

Establishment and implementation of a regular liaison arrangement.

Medium

13. Ensure the management of natural areas of public open space by Council is undertaken in a strategic and systematic manner and in accordance with legislative requirements and obligations.

13A Develop a tool to define management and maintenance needs, standards and responsibilities for natural areas.

Preparation of the management tool.

High


13B Develop a more systematic approach to recurrent funding of the management and maintenance of natural areas

Completion of the review of funding requirements

High

14. Investigate future opportunities for the use of the concepts of Biodiversity Banking and Certification, carbon credits and all other schemes available to Council, in assessing future areas for larger scale active open space development

14A Undertake an assessment of possible areas for future development and locations for the provision of environmental offsets.

Completion of the assessment.

Medium

15. Ensure that open space is designed to maximise community safety and crime prevention within Council resources and priorities within Council resources and priorities.

15A Adopt the requirements of Council’s Safer by Design Guidelines in the design of public open space and associated facilities.

Adoption of the guidelines in the planning, design and assessment of public open space provision.

High


Appendix 1 A summary of relevant Shoalhaven City Council Policy and Planning

documents and implications for the Open Space Plan

Policy/Strategy/Plan Purpose, Implications and Recommendations

Shoalhaven City Council Recreation Strategy, 1999

Purpose: Defines Council’s role as a provider of recreational facilities and services and establishes key result areas. Provides an over-arching strategic basis for the provision of public recreation in the Shoalhaven. The Strategy has been informed by significant community consultation. Comment: The strategy aims to provide for a diversity of recreation opportunities in the Shoalhaven. The Strategy is now over 6 years old and may no longer fully reflect demographic and recreational changes in the Shoalhaven. The Open Space Plan needs to consider the following recommended strategies: • The identification of sites for disposal or alternative uses,

and the development of guidelines for reinvesting funds for further recreation expenditure;

• Establishing a park hierarchy including regional, district, local and linear to serve the range of community needs;

• Development of appropriate passive recreation areas.; • Develop a marketing strategy to publicise the availability of

recreation facilities and opportunities; • Develop an Interpretation Strategy for the City’s open space

areas. Recommendation: Critically examine the current relevance of the strategies identified and to audit the extent of the implementation of the strategies and the linked actions.

Sporting Facilities Plan – 2001 - 2016

Purpose: The Sporting Facilities Plan (SFP) was developed to examine the specific needs and provision of individual sports that include indoor sport and a number of outdoor or field sports. Comment: The report covers the 15 year period from 2001 to 2016 and identified the nexus between future growth and demand for facilities. The SFP study was undertaken with community and sports group consultations under the five planning areas. It made recommendations on requirements for each sport.


The study did not develop a hierarchy of facility provision.

The location of current and future planned sporting facilities will be an important consideration in the supply of active open space in the Shoalhaven and the Open Space Plan.

The amount of open space assumed in the plan seems to be significantly understated. By 2006 the SF Plan noted the need for a total of 99.61 ha of playing surfaces across all Planning areas. The figure identified in this Open Space Plan is in the order of three times this amount.

Recommendations: The SF Plan should be reviewed to examine the current relevance of strategies and actions identified and the implementation of these actions.

The SF Plan also should be reviewed to take account of the proposed strategy of clustering of sporting facilities in regional Citywide and District urban centres.

The SF Plan also needs to acknowledge and incorporate proposed sportsground classifications and a hierarchy of facility provision based on these classifications.

Sports Tourism Study, 2002

Purpose: To identify sports tourism opportunities for the Shoalhaven.

Comment: The recommended strategy of the study was to ensure facilities are maintained to meet the needs of local population first and foremost and one-off events as opportunities arise. No specific implications for the Open Space Plan.

Shoalhaven Community Plan 2005-2010

Purpose:

Statutory Plan prepared under the Local Government Act 1993 and Local Government General Regulation 2005.

Comment: Defines community needs and priorities.

Recommendations:

The needs of the 9 target community groups identified in the Community Plan will need to be considered when planning for open space provision.

Shoalhaven Pedestrian Access and Mobility Plan Stage 1 (2001)

Purpose: This Plan is designed to improve the pedestrian environment in urban areas and to encourage walking.


Implications: The design principles in the Plan need to be taken into account in the development of open space, particularly urban parks and sportsgrounds.

Youth Needs Assessment 2002-03

Northern and Southern Shoalhaven

Purpose:

To assess the needs of youth (ages 12-25) across the Shoalhaven including recreational needs.

Implications: The needs of young people will need to be considered when assessing open space and associated facilities.

Issues of lack of access to sporting/recreational facilities such as skate parks by youth in some towns and villages.

Outlying villages. Facilities should be made available at local level where possible.

Annual Program for the Management of Crown Land Reserves –2004/2005, October 2005

Purpose:

Annual report to the Minister for Lands to provide information on revenues earned and funds expended on Crown Lands by Council.

Comment: Outlines new reserve trust arrangements which will have implications for the management of Crown open space.

Implications: Provides greater flexibility for Council to use revenue from their Crown reserves.

Provides information regarding Council revenues and expenditures on Crown lands.

Parks and Sportsground Maintenance Agreement

Purpose: Provides a formal agreement to maintain and improve Council’s Recreational open space network. Sets out management and operational requirements for open space and defines minimum standards to be adopted. Defines maintenance and improvement programs etc. Comment: A comprehensive document that provides a basis for the management of certain open space in the Shoalhaven. However it suffers from a serious mismatch between the adequacy of the budget and the required maintenance outcomes defined in the Agreement.


The extent of work, detailed requirements and maintenance standards established in the Agreement cannot be achieved with current funding levels. Funding in the agreement makes no allowances for additional costs associated with seasonal weather problems including low rainfall and its impact on the cost of the maintenance of areas such as sportsgrounds. The Agreement does not cover maintenance requirements for other types of open space such as natural areas, road verges, drainage land, leasehold and tourist related facilities, local pumping stations and so on. Recommendations: Reassess the standards and extent/scope of the work to be undertaken under the Agreement to determine a more realistic and achievable alignment with the available budget. Reassess priorities for the categories of budget expenditure to deal with risk management priorities such as the quality of sportsground playing surfaces.

Shoalhaven Park Enhancement Policy, August 2004

Purpose:

To guide the provision and enhancement of new and existing appointments to all maintained parks in the Shoalhaven to ensure an integrated and coordinated approach.

Comment: There is a need to distinguish in the management of open space between the enhancement of land through raising the general standard and useability of the land through actions such as drainage works, land reshaping, major landscaping etc and embellishment. The more appropriate term for this policy is embellishment, which is to add, install and maintain equipment and facilities such as play equipment, park furniture, signage, detailed landscape treatment, amenity blocks and other similar facilities.

The categorisation system and how it applies to parks in the Shoalhaven will be reviewed as part of the process of preparing the Open Space Plan.

There appears little differentiation between the range and level of facilities provided at the local and the district level.

It is noted that 56 district parks are identified in the schedule. 31 district parks are identified in the 2004 City Wide Passive Open Space S94 Plan.

No guidance is given to the type and mix of playground equipment to be provided. (refer to Playground Strategy).


The Policy is to be reviewed prior to 2008/2009.

Recommendation:

Review the plan to ensure consistency with other relevant documents.

Rename the policy the Shoalhaven Park Embellishment Policy.

Shoalhaven City Council Contribution Plan, 1993

Purpose: The Plan establishes the appropriate level of Section 94 contributions for a range of public amenities and services that include passive recreation and active recreation facilities. Comment: This Plan remains the current S94 Plan for the City wide provision of public active recreation open space. The implementation of the 1993 plan requires review and outstanding acquisition recommendations considered. However, the Open Space Plan may recommend amendments to the S94 Plan in order to incorporate its recommendations. This Plan has a number of fundamental problems which need to be addressed in the review. These include: • The limited number of sports discussed in relation to area

provision; • Playing fields which have multiple use, ie cricket and

football may be double counted; • Ancillary works for sports projects do not allow for items

such as irrigation, seating and floodlighting; • Does not take account proposed sporting classification

system or clustering of facilities in regional and sub regional centres.

Recommendations: The Plan needs to be reviewed and rewritten to cater for the current and future needs for recreational (active) open space provision across the City.

Section 94 Passive Open Space Contributions Plan 2004 (Amendment No75)

Various sections:

City Wide Passive Open Space

Individual plans for Passive Open Space for Planning Areas 1-5

Purpose: The Plans establish the appropriate level of S94 contributions for passive recreation open space, at both City Wide level for Icon and District level parks and walking tracks, and for local open space for each Planning Area.

Comment: There are a number of individual sections of the Section 94 Contributions Plans, 2004 that deal with the provision of passive open space on a Planning Area basis.


These plans identify areas for embellishment, development and acquisition of passive recreation areas.

There are also limited criteria outlined for site suitability.

The Open Space Plan should give consideration to the identified projects in recommending future provision and development of open space in the Shoalhaven. However, the Open Space Plan may recommend amendments to the S94 Plan in order to incorporate its recommendations.

Recommendation: Review the Plans to take into account the recommendations of the Open Space Plan.

DCP 100 Subdivision Code, December 2001

Purpose: This Development Control Plan aims to encourage appropriate subdivision design through the establishment of appropriate environmental criteria and the provision of a comprehensive design approach. Implications: The DCP provides various performance criteria for the provision of public open space together with acceptable solutions. The DCP does not specifically encourage the provision of usable open space that is suitable for recreational purposes. By default it encourages the use of public open space for stormwater management, and other ancillary purposes such as linkages. Recommendation: The DCP should be reviewed and amended to include specific criteria that will identify land that will not be acceptable for dedication to Council for passive and active recreational open space. This DCP must also be consistent with development requirements and performance criteria for land to be dedicated for recreational open space in the S94 Contribution Plans.

Various Generic Plans of Management for Community Land, 2001

These include the Generic POMs for:

Sportsground

Natural Areas

Parks

Purpose: The generic PoM provides a framework for the management of various types of Community Land under the Local Government Act.

Comment: These Plans are required to be substantially reviewed and reassessed every 5 years, that is, in 2006.

Note that in the absence of a specific PoM for Crown land that the provisions of the Generic Community Land PoMs will apply.


General Community Use. Implications: The Open Space Plan may require some or all of these Plans of Management to be amended to provide statutory force to the Plan’s recommendations.

Recommendations: The Plans are to be reviewed to ensure consistency with other Council policies and strategies, and in particular, with the Open Space Plan.

Strategies and actions in the PoMs to be reviewed for relevance together with the achievability of the stated level of implementation.

Various Specific Plans of Management

For example:

White Sands Park &Voyager Memorial Park POM November 2003, (Icon Park)

Crookhaven Headland Park POM January 2000, (District Park)

Purpose: The specific POM provides a framework for the management and decision-making regarding an individual and significant parcel of Crown or Community Land.

Comment: The contents of the plan including specific actions may raise community expectations in regard to when the work will be implemented. Often the availability of funds will be the principal determinant of implementation.

Recommendations: Ensure that the implementation of the action plan is examined on a regular basis.

Make allowance for programming and future funding of the proposed actions.

Icon Parks Policy, 2002 Purpose: To detail Council’s strategy for the development of Icon Park areas within the City.

Comment: The Policy identifies eight parks as Icons as well as Icon walking tracks reflecting visitation, tourism value, commercial benefits and visitor perceptions.

There is no icon park in Planning Area 2.

All Icon parks are located on Crown Land except Gateway Park.

As a freehold park Gateway is not able to attract funding from the Crown.

An implementation and broad development strategy is discussed for each park.


Note that the next review of the policy is scheduled for 2008.

Recommendation:

Review to ensure coordination with other relevant policy documents such as the Park Enhancement Policy, Generic Plan of Management for Parks and specific Poms for individual Icon Parks.

Foreshore Reserves Policy, June 2005

Purpose: Outlines management of Council managed foreshore reserves.

Comment/Implications: The Policy focuses on the appropriate management of council foreshore reserves and does not address the provision of foreshore reserves in a strategic land use planning sense. However it outlines the importance of foreshore reserves, which will need to be adequately reflected in the Open Space Plan.

Walking Tracks Strategy, 2000

Purpose:

The aim of this strategy is to develop a framework to provide and promote a range of quality walks in the Shoalhaven.

Comment: The strategy has been produced with contributions from a number of agencies.

The focus of the strategy is on land owned and/or managed by Council. The key result areas of the strategy include planning, maintenance, risk management, promotion and interpretation.

No specific walking tracks are identified in the document.

Recommendations: This Strategy should be reviewed to update the new recreational organisational arrangements and responsibilities in Council and to assess and audit the implementation of the identified actions.

The document needs to include a schedule of all walking tracks in the Shoalhaven including maps of the walks.

Round the Bay Walks Jervis Bay Feasibility Study, 2004

Purpose: The aim is to provide an Icon walk of about 50 km.

Comment: The Study was jointly funded and prepared by Council and NSW National Parks and Wildlife Service.


The aim is to develop an integrated management strategy for lands connecting the walk between Shoalhaven City Council and the NPWS.

Recommendation: Review progress, funding and integration with the broader Shoalhaven Walking Strategy.

Council owned or managed reserves should be retained to provide the long-term opportunity for development of the Round the Bay Walk.

Playground Strategy Review, 2004

Purpose:

Reviews the 1999 Strategy. Guides the provision, development and maintenance of Council’s playground facilities over the next 5 years.

Comment:

Identified the need to invest in new playgrounds to meet required Australian Standards and to address safety concerns.

Is really a play equipment (playground facilities) strategy.

Examines standards, equity of provision and development of playground facilities.

Relies on replacement program based on dollar value and not on the basic level of equipment.

Recommendations: Need to review provision methodology to cater for the needs of various age groups at District and Icon Park levels. Currently play equipment is only differentiated by size and dollar value, rather than type and the age category catered for.

Shoalhaven Bicycle Strategy 1997

Purpose:

To provides a strategic framework for bicycling in the Shoalhaven and to identify existing and planned future cycleway routes. Covers the period 1997-2002.

Comment: Future cycleways should attempt to link residential areas with local parks and other key areas of public open space.

Shoalhaven has a relatively poor cycleway system typical of a country LGA with few dedicated cycle paths and relatively poor connections between parks and other open spaces.


The bicycle strategy should link to the PAMP (Pedestrian access and mobility Plan) strategy, stage 1 and stage 2, and be included in any future reviews.

Recommendations: Document is out of date and should be revised as soon as possible.

Skate Facilities Policy, July 2004

Purpose: To define Council’s commitment to the provision of regional and local skate parks.

Comment:

Regional parks will be provided and fully funded by Council at Nowra, Ulladulla and Bay & Basin only.

Other facilities will be funded by Council up to 50% of the cost to a maximum Council contribution of $50,000.

Skate facilities are facilities to be included in certain open space reserves.

Note that the next review of the policy is scheduled for 2008.

The policy tends to be reactive and needs based.

Recommendation:

Review the implementation of the policy. Note that the next review of the policy is scheduled for 2008.

Local Area BMX Circuits Policy

Purpose:

To define Council’s requirements for the provision of local area BMX circuits within local open space reserves.

Comment: Local circuits should be located at a local level to serve young riders living within a 1 km radius.

Approval for a facility will be subject to eligibility and site selection criteria, construction guidelines and will require DA approval.

Recommendation: Review the implementation of the policy.

Access Areas for Dogs Policy

Purpose: To define Council’s prohibited areas and locations and areas of access for dogs.


Comment/implications: Off-leash areas for dogs and dog-prohibited areas have implications for the type of use of open space, particularly relating to multi-use activities and safety.

Use and Hire of Community facilities for Commercial Activities Policy, 2004

Purpose:

To define the appropriate commercial use of Council’s Community Facilities.

Comment/implications: Ongoing commercial use of reserves is likely where there is consistency with site-specific planning documents such as Plans of Management.

Recommendation: Review this document to provide a mechanism for determining the type, level and period/duration of commercial uses. Note that the next review of the policy is scheduled for 2008.

Safer by Design Guidelines, August 2006

Purpose: To provide an advisory tool to assist the incorporation of crime preventative measures into planning and development practices.

Comment/implications: Directly relevant to public open space planning and design.

Accessibility Guidelines,

August 2006

Purpose:

To encourage developers and designers involved in building and public domain design to incorporate access principles from the initial stage of the design and planning process.

Comment/implications: Directly relevant to public open space planning and design.

Appendix 2 Sport/Recreation Preferences by Age Group*

Age Group

Sport/Recreation Activity General Recreational Needs

Informal play - heavy use of parks especially those close to home with playground equipment Informal active sports Organised sports associated with schools and clubs (particularly 8-12 years). Family picnics Computer games

Small parks with play equipment within walking distance Formal playing fields and areas for informal sport Range of sport and support facilities Access to large bush/parkland areas for informal activities

0-14

Variety of informal and organised sports and activities Declining participation in organised sport Computer games

Formal play fields for organised sports and areas for informal activities Court areas Youth centres Access to large bush/parkland areas for informal activities Specialised facilities to meet identified demand such as skateboarding

15-19

Variety of informal and organised sports and activities Declining participation in organised sport. Social sport increases

Formal play fields for organised sports and areas for informal activities Court areas Passive open space and parkland

20-24

Participation in sport and recreation activities changes with greater involvement in family establishment and associated activities

Parkland with equipment for children Court areas Golf course Access to large bushland and parkland areas for passive recreational pursuits

25-39

The most significant active forms of recreation are golf, tennis and bowls. Participation in non-organised pursuits also typical

Parkland with equipment for children Facilities for golf, tennis and bowls Access to large bush/parkland areas for informal activities Swimming pools

40-64

Little participation in organised sport other than golf and bowls. Predominant outdoor recreation activities include walking for pleasure and passive use of parks and outdoor areas

Parkland and formal gardens Facilities for golf and bowls Linear parks for walking Small parks in the vicinity of users Access to large bush/parkland areas for informal activities Indoor swimming pools

65+

*Source: Based on NSW Department of Environment and Planning, 1984

Appendix 3

Figure 1: City of Shoalhaven land use and tenure

public open space plan

Documents