Source: https://infocouncil.coffsharbour.nsw.gov.au/Open/2019/12/CO_20191212_AGN_2209_AT.htm
Timestamp: 2020-04-04 20:42:09
Document Index: 211922504

Matched Legal Cases: ['Application No. 0782', 'art 11', 'art.\n3', 'art 7', 'art 3', 'art 3', 'Application No. 0782', 'Application No. 0782', 'Application No. 0782', 'art 4', 'art 4', 'art 5', 'art 7', 'art 5', 'art 7']

Agenda of Ordinary Council Meeting - 12 December 2019
GM19/33 2019 Code of Conduct Complaint Statistic Report ............................. 3
GM19/34 Local Government Remuneration Tribunal Proposed Classification Model......................................................................................................................... 8
GM19/35 Council Committees - Appointment of Members and Amendment to a Terms of Reference ......................................................................................... 18
GM19/36 Council Policy - Public Art Policy.............................................................. 24
BS19/64 Contract No. RFT-1177-TO - Supply, Installation and Maintenance of Body Scanner at Coffs Harbour Airport............................................... 29
SC19/64 Planning Proposal - Butlers Road, Bonville - Pre-Exhibition........ 32
SC19/65 Development Application No. 0782/19 - Seniors Housing - Lot 78 DP 1223036, Lot 1 and Lot 2 DP 1140702 and Lot 1 DP 252223, 8 Anchorage Close and 5-9 Moonee Beach Road, Moonee Beach............................ 296
SC19/66 Community Participation and Engagement Plan - Post Exhibition 351
SC19/67 Performing Arts Spaces (Indoor and Outdoor) - Issues and Options Discussion Paper (Interim Report)........................................................... 402
SC19/68 City Hill Site Analysis and Scoping.......................................................... 484
SC19/69 Lifeguard Service Strategic Plan - Post Exhibition........................ 532
SC19/70 Building Better Regions Fund - Round Four 2019............................... 594
SC19/71 Contract No. RFT-1168-TO - Coffs Coast Regional Sports Hub Stage 2 - Turf Field with Subsoil Drainage and Irrigation - Design and Construct........................................................................................................... 603
SC19/72 Contract No. RFT-1161-TO - Orara River Rehabilitation Project Bush Regeneration Tender 2019-22 ..................................................................... 606
SI19/15 Jetty Foreshores Access Ramp................................................................ 609
SI19/16 Estimate of Renewal Backlog Using Alternative Calculation Methodology..................................................................................................... 613
SI19/17 Contract No. RFQ-LGP-1183-QI - Lining of Defective Sewer Pipes 2019-2020.......................................................................................................................... 620
SI19/18 Contract No. RFT-1171-TO - Woolgoolga Beach Reserve Amenities Roof Structure and Other Associated Works.................................. 623
SI19/19 Coastal Works Commercial Bids............................................................... 626
Attachments: ATT1 GM19/33 2019 Code of Conduct Complaints Report ⇩
Under the OLG’s Procedures for the Administration of the Model Code of Conduct, there is a requirement to annually report a range of CoC complaint statistics to the both OLG and Council. This report is due within three months of the end of September of each year. The Complaints Report submitted to the OLG is attached.
There are no environment impacts relating to this report.
There are no social impacts relating to this report
There are no civic leadership impacts relating to this report.
There are no broader economic impacts relating to this report.
There is no risk associated with the noting of this report.
This report is required in order to meet the requirements of Part 11 of the Procedures for the Administration of the Model Code of Conduct.
The report presents Council’s Annual CoC complaint statistics.
Attachments: ATT1 GM19/34 Letter Tribunal Proposed Classification Model ⇩
Every year, the Local Government Remuneration Tribunal is required to make an annual determination on the fees payable to Councillors and Mayors to take effect from 1 July.
As foreshadowed in the 2019 Report and Determination, the Tribunal will be undertaking a review of categories of councils as part of the 2020 review. In reviewing the categories, the Tribunal examined a range of statistical and demographic data and considered the views of councils and Local Government NSW (LGNSW). The Tribunal proposes to create a new category for non-metropolitan councils, the new category, if determined, is proposed to be titled Regional Centre. There are no changes proposed for metropolitan councils at this time. If the determination proceeds, Coffs Harbour Council is included in this new category.
The letter and its attachments are attached to this report.
The determination of categories of councils is at the discretion of the Local Government Remuneration Tribunal. Councils are encouraged to provide a submission. The closing date for submissions in 20 December 2020.
2. Modify the recommendation, to provide additional commentary to the submission.
There are no perceived current or future environmental impacts associated with this report.
There are no social impacts associated with this report.
Should the proposed new category go ahead, there would be an increase in the fees paid to Councillors. The exact amount is not known at this time, the letter from the Tribunal details ‘fees for the new category of Regional Centre, if determined, will be between the ranges of fees currently paid to Regional Rural and Regional Strategic Centre.’
The current fees for 2019 are:
Councillor Fee $
Mayor Additional Fee $
If the Tribunal determines to go ahead, the additional fees would be payable from 1 July 2020 and would be budgeted for on an ongoing basis.
This report is endorsing a submission to the Local Government Remuneration Tribunal
Submissions to the proposed new categorisation close on 20 December 2020. It is recommended that Coffs Harbour City Council submit a letter of support to the Tribunal.
Attachments: ATT1 GM19/35 Draft Terms of Reference - Yandaarra Aboriginal Advisory Committee ⇩
As part of the normal functioning of council committees, community members and councillors are nominated to fill vacant positions. For nominees to be appointed, they need to be resolved by Council.
The following nominations are seeking to appoint the following community members:
· Bruce Fidge to the Coastal and Estuary Management Committee
· Joan Nicholson to the Disability Inclusion and Access Advisory Committee
· Luke Speer Woolgoolga Community Village Management Committee
· Aaron Banks to the Ayrshire Park Facility Management Committee
Council sought expressions of interest for appointment to the Coastal and Estuary Management Committee in October 2019. Mr Bruce Fidge was the successful applicant and has been nominated due to his extensive experience in coastal and estuarine engineering.
Ms Joan Nicholson approached council and expressed a desire to be part of the Disability Inclusion and Access Advisory Committee. Ms Nicholson attended a meeting and due to her experience, the Committee determined that she would be a suitable nominee.
Mr Luke Speer has previously been involved at the Woolgoolga Community Village and expressed a desire to join the Committee, as the committee still has vacancies, they determined that he would be a suitable nominee.
Mr Aaron Banks expressed a desire to join the Ayrshire Park Facility Management Committee, which is currently low in numbers. As Mr Banks is already involved in the local football club and has relevant experience, the Committee determined that he would be a suitable nominee.
On 13 June 2019, Council resolved to:
“Review the Terms of Reference for the Yandaarra Aboriginal Advisory Committee.”
In accordance with this resolution, the revised ToR is attached.
There are no issues identified regarding this report.
2. Amend the recommendation provided to Council by rejecting a nomination or updated ToR, and then adopt.
There are no environmental impacts relating to this report.
The care, control and management of these local community facilities by local residents and local community groups enable a sense of community ownership, community involvement and development and overall community well-being.
This approach is consistent with the Council’s MyCoffs Community Strategic Plan:
- A.1 A vibrant and inclusive place.
- B.2 A community achieving its potential.
Committees are formed to help Council facilitate services and functions using community volunteers with varied expertise. Broadly this taps into the wealth of community knowledge and experience, whilst acknowledging and supporting local skills.
There are no specific risks associated with the appointment of committee members and revision of Terms of reference.
S 355 and s377 Local Government Act 1993
Attachments: ATT1 GM19/36 Public Art Policy ⇩
The following table provides further detail regarding the attached policy:
1. Set a best practice approach to manage and maintain Coffs Harbour City Council’s (Council) public art collection to keep it as high quality, progressive and appropriate to the public realm.
2. Support the creation of high quality public spaces through the integration of public art.
3. Outline a whole of Council approach to the commissioning, delivery and maintenance of public art projects.
4. Assist Council staff and community partners to prepare best practice public art projects that reflect the vision of Creative Coffs
5. Strengthen a sense of place and contribute to improving public and open spaces
6. Set a strategic direction for all public art projects located or proposed in the public realm of the Coffs Harbour Local Government Area (LGA).
This policy forms the basis of a public art toolkit that is being developed.
3. Reject the policy meaning that Council will continue to have policy for public art.
Author: Commercial & Compliance Manager
Attachments: ATT1 BS19/64 CONFIDENTIAL Tender Assessment Contract No. RFT-1177-TO
That Council considers the tenders received for the Supply, Installation and Maintenance of Body Scanner at Coffs Harbour Airport, Contract No. RFT-1177-TO, and adopt the recommendation as detailed in the confidential attachment to this report.
On 8 May 2018, the Australian Government, through the Department of Home Affairs (Aviation & Maritime Security Division) announced measures to further strengthen Australia’s domestic and international aviation security. Coffs harbour Airport has been deemed as a Tier 2 Airport and upgraded security requirements will apply from December 2020. This report brings to Council the outcome of the procurement process for a body scanner and recommends a successful tenderer for the supply, installation and, maintenance of a body scanning unit.
Tenders were invited on Wednesday, 16 October 2019 for a Lump Sum contract from the suppliers approved by the Department of Home Affairs (Aviation and Maritime Security Division). At the close of tenders at 10.00am on Wednesday, 13 November 2019, three tenders were received from the following companies:
1. L3 Communications Australia Pty Ltd
2. Rapiscan Systems Pty Ltd
3. Smiths Detection (Australia) Pty Ltd
· Suitability to current and future operations
· Indicative timetable
· Methodology to complete contract works
· Quality and Health and Safety Management Systems
Issues are discussed in the Confidential Attachment.
The installation of a body scanner at Coffs Harbour Airport is a requirement of the Department of Home Affairs (Aviation and Maritime Security Division) and as such there are no other options presented.
A Radiation Management Licence is required under the Radiation Control Act 1990. Council currently has a radiation licence and the new equipment will be added to the existing licence. There are no other environmental issues as a result of the recommendation.
The provision of increased security measures at the airport provides customers with a greater level of assurance in relation to their personal safety when travelling by air from Coffs Harbour.
Proactively complying with the Department of Home Affairs (Aviation and Maritimes Security Division’s) security requirements demonstrates Council’s leadership.
The airport is a key infrastructure asset that generates considerable economic benefit to the region. Compliance with security requirements is a necessity to ensure the ongoing operation of passenger services at the airport.
The majority of the funding for the body scanner is provided through a grant from the Regional Airport Security Screening Fund (RASSF). Council was successful in securing $405,000 in funding for a new multi-view cabin baggage x-ray machine and a new body scanner.
The difference between the RASSF grant and the final cost will be funded through the airport reserve and the expenditure recovered on a cost neutral basis through the passenger security charge levied on the airlines.
There is significant risk with not proceeding with the recommendation. The installation and use of the body scanner is a requirement of the Department of Home Affairs (Aviation and Maritime Security Division) and failure to comply with the requirements could place the ongoing operation of passenger services at risk.
The Department of Home Affairs (Aviation and Maritime Security Division) has been consulted in regards to this procurement. Any equipment procured as part of the changed security requirements must be selected from a shortlist of equipment approved by them.
The calling and receiving of tenders was carried out in accordance with Part 7 Tendering of the Local Government (General) Regulations 2005. The installation and use of the body scanner is a requirement of the Department of Home Affairs (Aviation and Maritime Security Division).
The due date for completion of the security changes is December 2020. However, grant funding has been received and airport management have initiated the procurement process early to avoid delivery delays as a result of the volume of airports that must meet the new security requirements.
It is recommended that Council consider the tenders received and adopt the recommendation in the Confidential Attachment to this report.
Attachments: ATT1 SC19/64 Planning Proposal - Butlers Road, Bonville - Pre-Exhibition ⇩
ATT2 SC19/64 Draft Coffs Harbour DCP Amendment No. 17 - Butlers Road, Bonville ⇩
A proponent-led application has been received by Council to amend Coffs Harbour LEP 2013 to enable large lot residential development on Lots 4 and 5 DP 41228, Butlers Road, Bonville. This land was included in Planning Proposal PP_2015_COFFS_005_00 for Bonville as being suitable for large lot residential purposes post exhibition in response to submissions made during the public consultation process for the planning proposal.
At its Ordinary Meeting of 8 December 2016, it was resolved:
1. Adopt Planning Proposal PP_2015_COFFS_005_00 for the Bonville Large Lot Residential Investigation Area: Version 3 – Post Exhibition (Attachment 1).
3. Acknowledge that the final response of the Coffs Harbour Local Aboriginal Land Council (once received) will be forwarded to NSW Planning and Environment for inclusion in the finalisation of this Planning Proposal.
4. Adopt Bonville Large Lot Residential Developer Contributions Plan (Attachment 2), which will come into force upon the amendment of Coffs Harbour Local Environmental Plan 2013 consistent with Planning Proposal PP_2015_COFFS_005_00.
5. Inform landowners in the Bonville Large Lot Residential Investigation Area who made submissions to PP_2015_COFFS_005_00 of Council’s resolutions.
The former NSW Department of Planning and Environment was, however, unable to endorse the subject land for rezoning given that it was added to the planning proposal post exhibition and was therefore not subject to community consultation in accordance with the Gateway Determination. The advice from the Department at that time, was that a rezoning of the subject land for large lot residential purposes should be addressed via an individual planning proposal for the land.
In response to this, Council received an application for a proponent-led amendment to Coffs Harbour LEP 2013. The purpose of this report is to seek Council’s endorsement to initiate a planning proposal (Attachment 1) to amend Coffs Harbour LEP 2013 to rezone the subject land from Zone RU2 Rural Landscape to Zone R5 Large Lot Residential and Zone E2 Environmental Conservation and to amend Coffs Harbour DCP 2015 (Attachment 2) to align with the proposed land use zones.
· The Subject Land
The subject land relates to Lots 4 and 5 DP 41228, Butlers Road, Bonville which has an area of 10.13 hectares. The land is located approximately 13kms south of the Coffs Harbour City Centre and is bounded by Butlers Road to the north, Pine Creek State Forest to the west, Keoghs Road to the east, and land within Zone RU2 Rural Landscape to the south (see Figure 1).
Figure 1: The Subject Land
· Existing / Proposed Zoning of the Subject Land
The subject land is currently located within Zone RU2 Rural Landscape and Zone E2 Environmental Conservation under Coffs Harbour LEP 2013. The planning proposal seeks to rezone the subject land to Zone R5 Large Lot Residential and Zone E2 Environmental Conservation (see Figure 2 below).
Figure 2: Existing and Proposed Land Use Zones
· Coffs Harbour Local Growth Management Strategy
Whilst the subject land is not included within the Bonville Candidate Area of the Rural Residential Component of Council’s endorsed Local Growth Management Strategy (LGMS) 2008, the land is located within the wider Bonville Large Lot Residential study area.
The subject land was also endorsed by Council at its Ordinary Meeting of 8 December 2016 for rezoning to large lot residential purposes as part of Planning Proposal PP_2015_COFFS_005_00. The inclusion of this additional land was considered to be of minor significance as it did not undermine the achievement of the vision, goals or actions of Council’s LGMS.
Despite not being able to endorse the land for rezoning as part of Planning Proposal PP_2015_COFFS_005_00 due to community consultation requirements, the former NSW Department of Planning and Environment, did however, advise Council that rezoning of the subject land for large lot residential purposes could be addressed at a later stage by individual proponent led planning proposals. On the basis of this advice, the subject land was included within Chapter 6 – Large Lot Residential Lands of Council’s revised LGMS, which supports proponent initiated planning proposals for the subject land.
Chapter 6 – Large Lot Residential Lands of Council’s revised LGMS was endorsed by Council at its Ordinary Meeting of 22 August 2019. Council has requested the NSW Department of Planning, Industry and Environment’s endorsement of this Chapter.
As such, the application accords with Council’s strategic approach for the subject land.
· DCP Map Amendments
It is necessary to amend maps contained within Coffs Harbour DCP 2015 to align with the proposed LEP amendment. Coffs Harbour DCP 2015 - Amendment No. 17 (Butlers Road Bonville) includes updates to the front, side and rear setbacks maps; and the preservation of vegetation maps. DCP maps are shown on Council’s Online Mapping System (Geocortex) (Attachment 2).
Council has a number of options available to the planning proposal. They include:
1. Resolve to adopt the recommendation of this report.
3. Resolve not to adopt the recommendation of this report.
Environmental sustainability issues have been considered and are addressed in Part 3 of the planning proposal (Attachment 1).
Social sustainability issues have been considered and are addressed in Part 3 of the planning proposal (Attachment 1).
The planning proposal accords with Council’s strategic approach for the subject land; and supports the vision and objectives of the MyCoffs Community Strategic Plan by attracting people to work, live and visit by protecting the diversity of our natural environment and by undertaking development that is environmentally, socially and economically responsible.
In the event that Council endorses the planning proposal and that a Gateway Determination is issued by NSW Department of Planning, Industry and Environment, the proposed LEP amendment will result in a very small increase to lot yields within the Bonville locality. Consequently, there are no broader economic implications associated with this planning proposal.
The recommendations contained within this report are unlikely to impact on Council’s Delivery Program or Operational Plan. The LEP amendment process is a proponent-led process and funded via Council’s adopted fees and charges.
The planning proposal provided as Attachment 1 to this report addresses the constraints of the subject land, sufficient to allow Council to support the application and initiate the planning proposal. Should a Gateway determination be issued by NSW Department of Planning, Industry and Environment, the subsequent LEP amendment process and consultation requirements will ensure that any risks associated with the proposed rezoning of the land are adequately addressed and managed.
Should Council resolve to initiate the planning proposal and NSW Department of Planning, Industry and Environment issues a Gateway determination, the planning proposal is required to be publicly exhibited in accordance with the terms of the Gateway determination and relevant provisions of the Environmental Planning and Assessment (EP&A) Act 1979. Consultation with Government agencies and other stakeholders may also be required if specified within the Gateway Determination.
In early 2019, Council undertook extensive community consultation using the Place Score placemaking tool to understand community priorities and values. The Coffs Harbour LGA received a Place Score of 65, which is below the NSW average of 72. The top most ranked strength for the Coffs Harbour LGA in this study is “Elements of the Natural Environment”. Despite this strength, the community identified “Protection of the Natural Environment” in its top five priorities for improvement. The planning proposal will contribute to facilitating the priorities relating to the protection of the natural environment.
This planning proposal has been prepared in accordance with the Environmental Planning and Assessment Act 1979 and Regulation 2000. A number of other relevant policies and statutory documents have been considered in the preparation of the planning proposal.
Should Council resolve to support the recommendations within this report and initiate the planning proposal, a Gateway determination will be sought from NSW Department of Planning, Industry and Environment. This will allow public exhibition of the planning proposal and associated draft DCP. The anticipated timeframe for the LEP amendment process is summarised within the planning proposal (Attachment 1).
The purpose of this report is to seek Council’s endorsement to initiate a planning proposal to amend Coffs Harbour LEP 2013 to rezone Lots 4 and 5 DP 41228, Butlers Road, Bonville from Zone RU2 Rural Landscape to Zone R5 Large Lot Residential and E2 Environmental Conservation. Rezoning of the subject land for large lot residential purposes has previously been endorsed by Council as part of Planning Proposal PP_2015_COFFS_005_00 and Chapter 6 – Large Lot Residential Lands of Council’s revised LGMS. Sufficient planning merit for this minor increase to large lot residential land in Bonville is provided within the planning proposal (Attachment 1). The application accords with Council’s strategic approach for the subject land.
Attachments: ATT1 SC19/65 Development Application No. 0782/19 - S4.15 Evaluation Report ⇩
ATT2 SC19/65 Development Application No. 0782/19 - Plans ⇩
ATT3 SC19/65 Development Application No. 0782/19 - Draft Conditions ⇩
ATT4 SC19/65 CONFIDENTIAL Confidential Development Applicaiton No. 0782/19 - Submissions
Petersen Consulting Group.
Lot 78 DP 1223036, Lot 1 and 2 DP 1140702 and Lot 1 DP 252223, No 8 Anchorage Close and 5-9 Moonee Beach Road, Moonee Beach.
R2 Low Density Residential Zone.
Seniors Housing (29 self-contained dwellings), six (6) dwellings, one (1) exhibition home, demolition and subdivision (Torrens, Community and Strata Title).
The development site includes four Lots known as Lot 78 DP 1223036 (No. 8 Anchorage Close), Lot 1 and 2 DP 1140702 and Lot 1 DP 252223, (5-9 Moonee Beach Road), Moonee Beach. The site is zoned R2 Low Density Residential under the provisions of the Coffs Harbour Local Environmental Plan 2013. The site has a cross fall from the eastern boundary to the western boundary of approximately 5.5 metres over a distance of 160 metres.
The site has following areas and dimensions:
- Area – 11, 782m2;
- Northern boundary adjoining No. 3 and No. 8 Anchorage Close of approximately 124m;
- Eastern boundary adjoining No. 13 Moonee Creek Drive and 11 Moonee Beach Road of approximately 120m;
- Southern boundary to Moonee Beach Road of approximately 110m; and
- Western boundary of approximately 80m.
The subject site currently accommodates three single storey dwellings along Moonee Beach Road. The site is located within an established residential area characterised by single storey dwellings. Adjoining the site to south east (11 Moonee Beach Road) is an established single storey multi-unit development containing three units. Opposite the site to the south is the Moonee Markets and to the west is land zoned R2.
The proposal involves the construction of 29 self-contained seniors living dwellings and 7 x dwelling houses with one of the 7 dwellings to be used as an exhibition home.
The seniors living component of the development comprises a mixture of single and two-storey buildings. Nine two storey buildings are located along part of the eastern boundary and southern boundary.
The two storey buildings each contain a dwelling on the ground and first floor, with a lift and stairwell providing access to the upper floor dwellings. 10 single storey dwellings are located in the middle of the site with one single storey dwelling located in the north eastern corner of the site.
Seven single storey dwellings will be constructed that will not form part of the seniors housing development. These dwellings will be located along the western portion of the site and contain 3 bedrooms. One of these dwellings (LD-01 as indicated on the architectural plans) will be temporarily used as an exhibition home.
All of the above dwellings contain 3 bedrooms.
The proposal will involve a 28 Lot community subdivision, including 1 neighbourhood lot that will form the internal road and communal open space. The two storey dwellings (proposed Lots 3-11) will be subject to a strata subdivision.
The proposal will also involve the following:
- Demolition of the dwelling at 5 Moonee Beach Road;
- Earthworks, cut and fill of up to 2 metres;
- Demolition of out buildings;
- Visitors car parking;
- Tree removal;
- Stormwater works; and
- Torrens subdivision to include part of 8 Anchorage Close into the subject site.
On 13 April 2018, Council issued a consent (0316/18DA) for “Seniors Housing (26 self-contained dwellings) and Subdivision (27 lots - Community Title, including internal road), at 5-7 Moonee Beach Road, Moonee Beach.
On 27 September 2019, Council issued a construction certificate (0056/19CW) for the construction of a pedestrian refuge and footpath from the site’s pedestrian access point along Moonee Beach Road eastward, up to the roundabout located at the intersection of Moonee Beach Road and Sullivan’s Road.
The main assessment issues for the proposed development are:
- Traffic and parking;
- Pedestrian safety;
- Character of the area;
- Bulk and scale;
- Amenity (noise and overlooking);
- Setbacks;
- Solar access/overshadowing, and
- Variations to Council’s Development Control Plan 2015 - Control C1.6: Subdivision of land; Control D3.1: Density requirements; and Control D3.3: Side and rear setbacks.
These issues are detailed in the Section 4.15 Evaluation Report as Attachment 1 to this report.
1. Adopt the recommendation thereby granting approval to the application, subject to conditions.
2. Refuse the application and list reasons for refusal.
A complete assessment of potential environmental impacts is provided in the Section 4.15 Evaluation Report as Attachment 1 to this report.
A complete assessment of potential social impacts is provided in the Section 4.15 Evaluation Report as Attachment 1 to this report.
The proposed development is considered to be consistent with the ‘MyCoffs Community Strategic Plan’ particularly the ‘A Place for Community’ theme, which requires amongst other things that development occur in a way that is environmentally, socially and economically responsible.
The proposed development is not expected to result in any significant broader economic implications.
The development was advertised and notified in accordance with the requirements of the Coffs Harbour Development Control Plan 2015 for a period of fourteen (14) days and thirty (30) submissions were received.
A full copy of all of the submissions is a confidential attachment to this report (Attachment 4) as the submissions may contain personal or private information or other considerations against disclosure as prescribed under the Government Information (Public Access) Act 2009.
- State Environmental Planning Policy (SEPP) No 44 — Koala Habitat Protection
- State Environmental Planning Policy (SEPP) No 55 — Remediation of Land
- State Environmental Planning Policy (SEPP) Building Sustainability Index: BASIX 2004
- State Environmental Planning Policy (SEPP) - Coastal Management 2018
- State Environmental Planning Policy (Housing for Seniors or People with a Disability) 2004
A comprehensive assessment of the application has been undertaken in accordance with all statutory requirements and it is recommended that the application be approved subject to a number of standard conditions (Attachment 3).
Author: Section Leader Community Planning & Performance (Acting)
Attachments: ATT1 SC19/66 Community Participation and Engagement Plan ⇩
ATT2 SC19/66 Coffs Harbour Development Control Plan - Amendment 16 (Community Participation and Engagement Plan) ⇩
ATT3 SC19/66 CONFIDENTIAL Community Participation and Engagement Plan - Submissions Received
It is a new requirement under the Environmental Planning and Assessment Act 1979 that all applicable NSW planning authorities, including councils, develop a Community Participation Plan (CPP) to make it clearer and easier for the public to understand how they can participate in planning decisions.
Councils may choose to meet their obligation for a CPP by incorporating the CPP requirements into broader community engagement strategies they prepare under local government legislation or by preparing a standalone CPP document.
The Coffs Harbour City Council CPP has been written to comply with both the planning legislation and the forthcoming amendments to the Local Government Act 1993 by the Local Government (Governance and Planning) Bill 2016, which states:
(draft) Sect 402A Community Engagement Strategy - A Council must establish and implement a strategy (called its community engagement strategy) for engagement with the local community when developing its plans, policies and programs and for the purpose of determining its activities (other than routine administrative matters).
This is Council’s first CPP and due to the inclusion of a broader community engagement strategy, is titled as the Community Participation and Engagement Plan (CPEP) (see Attachment 1). The CPEP is designed to make participation and engagement in Council’s decision-making easier for the community and stakeholders within the Coffs Harbour Local Government Area (LGA). It does this by setting out in one place how and when community members can inform, influence and assist in a range of Council functions, such as project design and implementation, strategic planning, land use planning and assessments. The CPEP is a public document, designed to communicate in one place how the community can participate in Council’s planning and decision making.
At its Ordinary Meeting of 10 October 2019, Council considered a report on the draft Community Participation and Engagement Plan and draft Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan). At that meeting, it was resolved:
1. Endorse and publicly exhibit the draft Community Participation and Engagement Plan (Attachment 1) for a minimum period of 28 days’ subject to amending the Public Notification Protocols for Development Applications to include not only adjoining owners, but also including adjoining plus two.
2. Endorse and publicly exhibit draft Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan) (Attachment 2) for a minimum period of 28 days.
3. Consider a further report, outlining the outcomes of the public exhibition process for the Draft Community Participation and Engagement Plan and draft Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan).
Public exhibition of the draft Community Participation and Engagement Plan and draft Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan) was undertaken from 16 October 2019 to 29 November 2019 in accordance with Item 1 and 2 of the resolution. Five submissions were received during the exhibition period.
The purpose of this report is to present the outcomes of the public exhibition process and to seek Council endorsement of the Community Participation and Engagement Plan and Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan) as shown at Attachment 1 and 2.
1. Submissions Received
Five submissions (noting six different matters) were received during the exhibition period:
Linked the development of the CPEP with the perceived lack of community participation with the Cultural and Civic Space Project.
Requested that the Cultural and Civic Space be placed on hold and the community to be given an opportunity to participate in the decision making for the project.
The CPEP is a public document, designed to communicate how the community can participate in Council’s planning and decision making, including how and when community members can inform, influence and assist in a range of Council functions, such as project design and implementation, strategic planning, land use planning and assessments.
The CPEP does not reference the specific community engagement undertaken for any particular project, such as the Cultural and Civic Space Project, although it does specify mandatory public exhibition requirements for the different categories of development as required by planning legislation.
The community engagement process (public exhibition) undertaken by the Minister of Planning, Industry & Environment in relation to the development application lodged for the Cultural and Civic Space Project complied with the mandatory public exhibition requirements of relevant legislation and was also consistent with the requirements of section 4.2.2 of the CPEP.
Comment that all large infrastructure and/or community projects must be agreed to by the ratepayers at an election.
Council must not only consult with residents and ratepayers but must act in accordance with the wishes of residents/ratepayers
The CPEP states that the most appropriate level of community engagement on the IAP2 spectrum for a development proposal is “consult”.
This submission suggests that a higher level of engagement, “empower”, which provides the public with direct decision-making powers such as voting, is appropriate for large community or infrastructure projects.
The higher level of engagement suggested is not considered appropriate or necessary. Part 4 of the CPEP specifies that major development on public land or Council controlled property is “advertised development” and must be placed on public exhibition for public comment. Interested residents and ratepayers are provided with an opportunity to make a submission to Council on such applications. When an application attracts a large number of submissions, the matter is formally reported to the elected Council for their decision at a Council meeting.
How will the council engage with 36 to 70 year olds, it is not specifically stated, I feel the local paper, radio and television stations to be the best way to receive council information, which should be delivered over a period of a month, and documents mailed out with the quarterly rate notices.
A specific engagement strategy for people aged between 36 and 70 has not been developed as this age group was not considered to be ‘hard to reach” or to engage with. In fact, Council typically has the most success reaching and engaging with this age group than any other age group.
Despite this, Council is committed to engaging with all people across our community. The goal of the community engagement is to provide opportunities for participation that is flexible and appropriate for our community and takes into account language, literacy, cultural barriers and accessibility considerations.
Council should acknowledge that they have received each submission
Council’s Submission Policy requires that where submissions are lodged an acknowledgement will be sent to the submitter.
Section 4.3 of the CPEP makes a commitment that when a formal submission is lodged in relation to a development application or a matter or proposal that has been placed on public exhibition (advertised) and/or notified to neighbours, Council will acknowledge this submission in writing within 5 days of the close of the public exhibition period.
Submission suggests that all property owners of land that is within 20 metres of a development proposal facing a laneway should receive written notification of the development.
Part 4.3.2 of this CPEP specifies that Development identified as Notified Development for the purpose of this Plan will be publicly notified by written notice of the development application for a period of 14 calendar days.
Written notification will be made to adjoining and surrounding land owners (adjoining plus two properties) and the owners of land that, in the opinion of Council may be detrimentally affected by the proposal. When deciding whether or not a development will detrimentally affect the enjoyment of adjoining land or locality, Council will consider the matters listed on page 40 of the CPEP.
If the assessing officer believes that other properties other than those required to be notified may be detrimentally affected by the proposal, they are able to notify additional land owners at their discretion.
Submission acknowledges that meaningful and constructive community consultation benefits residents and that communication and understanding between Council and community in the planning stages is paramount to successful outcomes.
Council is committed to engaging with the community on planning and decisions that affects residents and recognises that community participation and engagement is a valuable process in local government decision-making. It assists Council to set priorities, determine levels of service, and confirm strategies and activities that will best achieve the desired community outcomes. Council also recognises that community participation can strengthen and enhance the relationship between community and government.
As an outcome of the submissions received during the exhibition period, no changes have been made to Community Participation and Engagement Plan and Coffs Harbour Development Control Plan 2015 – Amendment No. 16 (Community Participation and Engagement Plan).
The Department of Planning, Industry and Environment have requested that all CPPs be in place and published on the ePlanning portal by 1 December 2019.
Due to the public exhibition requirement of the CPEP, it is targeted that Council will place and publish the final CPEP on the ePlanning portal final once adopted by Council.
3. Changes to public notification requirements
The NSW Department of Planning, Industry and Environment have instructed Councils to incorporate public notification requirements into CPP’s and to revoke public notification requirements within existing Development Control Plans (DCP’s).
This report seeks Council’s endorsement of the CPEP to instruct how the community will be consulted when Council is undertaking its planning and decision making functions as required by planning legislation, specifically for public notification relating to advertised development (public exhibition) and notified development (notification of adjoining/neighbouring land) and for strategic planning functions. Adoption of the resolutions contained within this report will move public notification requirements from Council’s DCP into the CPEP. Words will be retained within Council’s DCP to advise this is the case (Attachment 2).
The draft CPEP was amended prior to exhibition, in accordance with the Council resolution of 10 October 2019, to specify that written notification will be made to adjoining and surrounding land owners (adjoining plus two properties) and the owners of land that, in the opinion of Council may be detrimentally affected by the proposal. These provisions are retained in the final document (Attachment 1).
3. Resolve not to adopt the recommendations of this report,
The Community Participation and Engagement Plan provides guidance for Council and has no direct environmental impacts.
The Community Participation and Engagement Plan provides guidance for Council and aims to ensure our diverse community are encouraged and supported to engage and participate in Council planning and decision making that affects them.
The MyCoffs Community Strategic Plan states that we undertake effective engagement and are informed - (D1.2). The Community Participation and Engagement Plan is designed to make participation in Council’s decision-making easier and to provide a consistent framework of engagement for Council staff to refer to.
There are no broad economic implications associated with the Community Participation and Engagement Plan.
It should also be acknowledged that extra resourcing may be required when undertaking engagement with hard to reach groups or on Council’s larger and more complex projects. These processes will necessitate a variety of engagement methods to meaningfully engage with stakeholders and the broader community and will require adequate resourcing from Council to do this effectively. Training of relevant staff in effective community engagement, such as that offered by IAP2, is also warranted.
Council will need to update a Community Participation and Engagement Guidelines document to provide a Council-wide reference for our approach to Community Participation and Engagement. Resourcing will be required to develop this Guidelines document, and to align the Community Participation and Engagement Plan with the communication activities and requirements in the External Communications Strategy 2018 – 2020.
As identified in the Council report of 10 October 2019, there was a risk of non-compliance with the deadline set for the completion of a CPP by the NSW Department of Planning, Industry and Environment. Due to requirement for Council to undertake a public exhibition period, Council is unable to comply with the request by the Department to publish the CPEP on the ePlanning portal by 1 December 2019.
There is also a reputational risk for Council if the CPEP is not resourced and implemented effectively.
The CPEP has been prepared with input from relevant stakeholders and subject matter experts across the organisation.
The CPEP has been prepared in accordance with the relevant provisions of the Environmental Planning & Assessment Act 1979 and Local Government Act 1993. The CPEP and amendment to Coffs Harbour DCP 2015 were publicly exhibited in accordance with the Environmental Planning & Assessment Act 1979 and associated Regulations.
The CPEP will be uploaded to the ePlanning portal once adopted by Council.
The CPEP has been prepared to make participation in Council’s decision-making easier for the wider community. The document has been prepared to comply with the Environmental Planning and Assessment Act 1979 and forthcoming amendments to the Local Government Act 1993. The CPEP aligns with Council’s adopted Community Engagement and Submissions Policies.
Attachments: ATT1 SC19/67 Discussion Paper for Issues and Options Performing Arts Indoor and Outdoor ⇩
Hawkridge Entertainment Services have been engaged by Council to undertake an Issues and Options for Performing Arts Spaces (Indoor and Outdoor) for the Coffs Harbour Local Government Area (LGA). Key interim findings have been outlined in relation to current performing arts infrastructure, gaps and needs for both indoor and outdoor infrastructure. The Council report makes recommendations to exhibit the discussion paper for further stakeholder and community input and to test the interim findings prior to finalising the report and recommended next steps for Council’s consideration.
At the 26 November 2015 meeting, Council resolved to develop a Cultural Strategic Plan 2017-2022 (Stage 1) and then undertake a (Stage 2) Feasibility and Cost Benefit Assessment of a Performing Arts Centre for the Coffs Harbour area. Stage 2 was to include exploring options for public/private partnerships and assess existing performing arts venues for expansion or redevelopment opportunities.
During 2016 the draft Cultural Policy and Plan was developed by consultants Positive Solutions. These documents were underpinned by a comprehensive situational analysis and extensive community and stakeholder engagement. They provided a framework to guide the strategic direction, investment and outcomes of cultural and creative development in Coffs Harbour City Council Local Government Area (LGA). It became apparent through Stage 1 of the planning process that Stage 2 required to be further broken down into two components being Stage 2(a) and Stage 2(b) as there was not a widely agreed set of characteristics in relation to the purpose, type and level of specification required and facility location for indoor performing arts infrastructure.
At its meeting of 23 February 2017, Council noted the commencement of the next stage of the cultural strategic planning process, being Stage 2(a) as listed below and outlined the proposed Stage 2(b) (if endorsed by Council).
Stage 2(a) Issues and Options – Performing Arts Spaces – indoor and outdoor
- Needs analysis, size and purpose
- High level costs and benefits
- Explore options for Public Private Partnerships
- Assess existing venues for expansion and redevelopment opportunities
Stage 2(b) Full Feasibility Study (if endorsed by Council)
- Financial (operational and capital)
- Social, economic, environmental and cultural costs and benefits
- Suitable location
In 2018, the scope of Stage 2(a) was expanded to include outdoor performing arts space as an output from the City Hill scoping process for cultural development.
Hawkridge Entertainment Services were engaged by Council to undertake Stage 2(a) and provide an Issues and Options Analysis for Performing Arts Spaces (Indoor and Outdoor) as outlined in Attachment 1. Interviews with approximately 30 organisations and individuals who hire venues across the Coffs Harbour LGA for performing arts activities has been completed and include representatives from:
- Schools and education institutions;
- Community theatre groups;
- Community music performance groups;
- Eisteddfod groups;
- Dance schools;
- Local and national Promoters;
- National Producers.
This research and interviews added to interviews and research undertaken for cultural facility development by Council project officers in 2017/18.
The preliminary research process also included undertaking an expression of interest process via the Have Your Say website to explore options for public/ private partnerships and assessment of existing venues for expansion or redevelopment opportunities. Interviews and assessment has included schools, clubs and smaller organisations who are considering plans for development of performing arts infrastructure.
Interim Findings and Options – Indoor Performing Arts Space
The key interim findings and suggestion options for consideration for indoor performing arts space are summarised below:
Immediate and longer term needs: Initial research and stakeholder discussions have indicated that there is an immediate need for approximately 15% to 20% of hirers for a venue with a larger stage to cater for Dance and Eisteddfod performances, an unquantified need for a venue suitable for touring producers and promoters (small to medium scale) and a need to plan for a Performing Arts Centre in Coffs Harbour.
As a growing Regional City, the needs identified are for a theatre of approximately 600 to 1,000 seat capacity and at the same time to retain the Jetty Memorial Theatre as a secondary theatre providing for the ability to scale depending on the artist and performance.
Timeline and cost: Construction of a new, fit for purpose centre would take approximately six years and cost between $50m to $60m in 2019 figures. The centre would cost between $850,000 and $2,000,000 to operate per year but would provide significant economic benefits to the region through the activity that occurs in the centre as well as the wider economic impact that can occur from the activity within and around the centre.
Benefits: In addition to the considerable economic benefits, a performing arts centre would:
- enhance the quality of life for the residents of Coffs Harbour and help to make it a great place to live;
- provide exceptional experiences for children;
- enhance economic development and provide new opportunities for local businesses while attracting employees to the area;
- attract more visitors by providing more entertainment opportunities;
- ensure that performing arts companies, as well as children and youth, across the region have a place to perform that is of excellent quality;
- increase the community of performing artists by providing learning experiences in an outstanding venue; and
- connect people of all ages and cultures through the experience of live performances.
Funding: It is unlikely that any proponent other than Council is able to fund a significant amount of any new construction. Council needs to make the decision whether to commit to the construction of a new performing arts centre or not and, if proceeding, to include the cost of the project in all future Council budgeting as well as financial, strategic and asset planning.
Location: The location of a new indoor Performing Arts Centre should be in the Coffs Harbour CBD. Council’s documentation clearly outlines the provision of major cultural infrastructure in the CBD and most recently through the City Centre Masterplan adopted in 2013. This is based on sound fundamental planning principles. Industry best practice also recommends the location of any new major performing arts space to be in CBD locations with easy access to complementary facilities including restaurants, café, retail outlets and other entertainment activity. Further, both government and architectural planning documentation advocates for cultural infrastructure to be located in active, central locations. Benchmarking against other regional theatres confirms the most usual location for a Performing Arts Centre is in the central business district or within walking distance of the central area.
Short-term actions and options for consideration: There are a number of short-term actions and options that are recommended for consideration to increase the performing arts activity in Coffs Harbour LGA that include:
- Undertake a feasibility for the performing arts centre that will include a review of the most suitable location in Coffs Harbour CBD, the subsequent cost planning of the chosen site and development of the operating model including financial operating costs.
- Undertake a business/strategic plan update of the Jetty Memorial Theatre, review the proposed rehearsal space extension plans and consider funding construction or matched funding allocation for grant opportunities.
- The development of a Coffs Harbour Venues Guide to assist potential hirers.
- Improve infrastructure, in particular stage size and storage where feasible, on existing or new Council multipurpose facilities or venues such as the proposed Woolgoolga Indoor Sports Facility or Sportz Central.
- Where possible and feasible, Council should use its available mechanisms to assist land owners or building proponents who have performing arts facility development plans in order to increase the number of performance and rehearsal spaces in the region.
- Council to take a more active role in the attraction of major Arts events particularly in the performing arts to further develop the cultural profile of the region.
- Review the opportunities for Coffs Harbour City Council to facilitate pop up venues in order to assess the demand for future facilities and develop the cultural profile for the city.
Interim Findings and Options – Outdoor Performing Arts Space
The provision of outdoor performing arts spaces in the Coffs Harbour area is good and limited changes to infrastructure are required. Individual promoters of major events and performances have different requirements and therefore choose the location depending on the particular needs in that circumstance. Sometimes the requirements change depending on the artists performing.
- There are a number of existing spaces that are effectively used for outdoor performance
- Large outdoor productions usually travel with their own technical infrastructure, including stages, lighting, sound and audio-visual equipment
- Generally promoters prefer sites with minimal built infrastructure, however are in favour of services such as direct sewer outlets and three phase power outlets
- Council could further support outdoor events by adding fixed infrastructure such as fencing, connectively (bridges, transport) and temporary facilities
At this stage no environmental impacts have been identified. Should the planning project move to Stage 2(b) Feasibility stage, investigations into site impacts and environmental sustainability of any infrastructure would need to be considered further.
In addition to the considerable economic benefits, enhanced performing arts infrastructure within the LGA would enhance the quality of life for the residents and help to make it a great place to live. Fit for purpose infrastructure would ensure that performing arts companies, as well as children and youth, across the region have a place to perform that is of excellent quality; increase the community of performing artists by providing learning experiences in outstanding venues; and connect people of all ages and cultures through the experience of live performances.
The performing arts planning project Stage 2(a) assists Council to achieve the desired outcome of A1.1 A vibrant and inclusive place. The vision of Creative Coffs – Cultural Strategic Plan is: “A vibrant and creative Coffs lifestyle enriched by its natural beauty, diverse people and capacity for innovation.”
Investing in additional performing arts infrastructure (both indoor and outdoor) would provide significant economic benefits to the region through the activity that occurs within the facilities as well as the wider economic impact that can occur from the activity within and around the facilities.
Improved performing arts infrastructure will enhance the attractiveness and liveability of the Coffs Harbour LGA to attract and retain residents to the area. Enhanced infrastructure would provide new opportunities for local businesses while attracting employees to the area. Improved infrastructure would attract more visitors to the region and visitor economy by providing more entertainment opportunities.
Stage 2A) and 2B) of this planning project is outlined in the Delivery Program and Operational Plan.
Should Council wish to proceed to Stage 2B) further budget for feasibility and further consultation and studies will be required.
A construction of a new, fit for purpose indoor performing arts centre would take approximately six years to plan and build and cost between $50m to $60m in 2019 figures. An operational cost is estimated of between $850,000 and $2,000,000 per year. Construction of an indoor performing arts space is not currently within the Delivery Program or Resourcing Strategy. Construction and operational costs are not currently contained within any forward planned budgets or the long term financial plan.
There is considerable frustration in the community and from the performing arts sector in relation to the numerous times direct stakeholders and the community have been consulted on the subject of performing arts space infrastructure. As a consequence, there is a risk that stakeholders and community may not participate or feedback on the issues and options paper due to this consultation fatigue.
There is a risk that confusion continues around the history of performing arts infrastructure development, types of venue, location and related Council decisions. It is hoped that by including the historical timeline and background information on the types of venue and terminology will assist mitigate this risk.
The preparation of the discussion paper and background research involved consultation with a range of stakeholders across the organisation and other regional Councils in NSW. Engagement has initially targeted a range of sector stakeholders, with discussions occurring with approximately 30 organisations and individuals who hire venues across the Coffs Harbour region for performing arts activities.
Between December 2019 and February 2020 community members will be invited to provide feedback and submissions in relation to the Issues and Options (Interim Findings) Discussion Paper for Performing Arts Spaces (Indoor and Outdoor).
Consultation and information sessions are planned for February 2020 (with Hawkridge Entertainment Services consultants present) and will be an opportunity for participants to test the preliminary findings and provide feedback on the recommendations. Information sessions are planned be held in March 2020 with the performing arts sector.
- City Centre Masterplan 2031
- Local Growth Management Strategy
- Creative Coffs - Cultural Strategic Plan 2017- 2022
- Coffs Harbour Economic Development Strategy 2017-2022
- Coffs Coast Tourism Strategic Plan 2020
- Coffs Harbour Events Strategy 2020
- North Coast Regional Botanic Garden Management Strategy
Should Council resolve to place the Discussion Paper on exhibition it is proposed that between December 2019 and February 2020 community members will be invited to provide feedback and submissions. Information sessions are planned be held in March 2020 with the performing arts sector. The Issues and Options for Performing Arts Spaces post exhibition report and recommendations is targetted for Council consideration by May 2020.
Key interim findings have been outlined in relation to current performing arts infrastructure, gaps and needs for both indoor and outdoor infrastructure. The Council report makes recommendations to exhibit the discussion paper for further stakeholder and community input and to test the interim findings prior to finalising recommended next steps for Council’s consideration.
Attachments: ATT1 SC19/68 City Hill Site Analysis - Final ⇩
2. In regard to the northern / vegetated area of City Hill, commence concept design and preliminary costings for cultural development with the scope focussed on low level ancillary and integrated facilities to the National Cartoon Gallery, such as a sculpture walk and/or studios, which generally reflects the existing environmental attributes.
3. In regard to the southern area of City Hill, consider a further report in relation to the preferred use options once the broader Community & Cultural Facility planning process and Issues & Options Discussion Paper for Performing Arts Space (indoor and outdoor) has been finalised.
This Council report presents the outcomes from studies, research and stakeholder engagement that have informed recommendations for the proposed next steps and scope for concept designs and preliminary budgets associated with cultural development on City Hill.
At the 11 May 2017 Council meeting, it was resolved to allocate $75,000 to “undertake studies, concept designs, and preliminary budgets associated with the cultural development at City Hill.” The same Council resolution as listed below determined the scope of the co-located library, regional gallery, customer service area, Council Chambers and Council staff office accommodation within a Cultural and Civic precinct within the CBD as follows:
1. Endorses the project to be named Cultural and Civic Space – For the Heart of the City.
2. Adopts the scope of the Cultural and Civic Space project to include a new central library, regional gallery, customer service area, Council Chambers and Council staff office accommodation.
3. Notes that the Regional Museum asset, and other Council assets, will be considered within the asset consolidation and business case planning exercise.
4. Adopts the Library/Gallery Precinct Analysis (Attachment 2) and updates the City Centre Masterplan accordingly.
5. Notes that $160,000 for project management and updates to both the Regional Gallery and Library Service Strategic Plans will be considered by Council for the final 2017-2021 Delivery Program and final 2017/18 Operational Plan.
6. That Council commit to allocate $75,000 in next year’s budget to undertake studies, concept designs, and preliminary budgets associated with the cultural development at City Hill.
The site ‘City Hill’ used in this report is defined as being located on the corner of Albany Street and Hogbin Drive, Coffs Harbour and includes the following land parcels:
- Lot 1 DP880432, Lot 21 DP867844, Lot 24 DP1031761 and Lot 100 DP862869
The City Hill subject site owned by Coffs Harbour City Council is illustrated in Figure 1 below.
Figure 1 – City Hill Subject Site
In response to the Council resolution, investigative work commenced in order to establish options for concept designs and preliminary budgets associated with cultural development at City Hill. The key outcomes are listed below:
1. City Hill Stakeholder Engagement
Stakeholder consultations were undertaken by Max Hardy Consulting in 2017. The purpose of this targetted consultation was to understand stakeholder plans and aspirations in order to inform and guide a scope for cultural development at City Hill.
These consultations highlighted significantly varied and conflicting views on what cultural development could and should be considered by Council as part of this project. Some stakeholders requested that Council reaffirm the previous 1990s plans to make City Hill an arts/cultural precinct while other stakeholders requested that Council retain the policy position of the City Centre Masterplan 2031 that identifies centralised city centre cultural facilities including library, regional gallery and performing arts space.
Other cultural development ideas from these consultations that were put forward were implemented in 2018/19 and include:
- National Cartoon Gallery - for Council to assist with resourcing to develop plans to add another level to the National Cartoon Gallery on City Hill. In August 2018, Council resolved to commit $155,000 and the National Cartoon Gallery successfully secured approximately $2.6mn State Government funding through the Regional Cultural Fund Round 2 in March 2019. Construction is to commence shortly.
- Outdoor performance area – for Council to explore an outdoor performance area on the City Hill site. The brief for Stage 2A) Issues and Options Paper for Performing Arts Space project was expanded to include outdoor performance areas. The interim findings from the Issues & Options Discussion Paper for Performing Arts Spaces (indoor and outdoor), as reported separately on the Council agenda, does not identify City Hill as a location for Council to consider development of an indoor or outdoor performing arts space.
2. City Hill Site Analysis
A Site Analysis (Attachment 1) of the City Hill site was undertaken by Locale Consulting in 2019 to understand the land use planning, land titles and urban design context.
The site analysis process assists in enabling realistic land use options for the site to be considered once the site potential is more readily understood.
The general approach taken for the Site Analysis process and proposed next steps is set out below:
The Site Analysis document outlines the key implications for development in the following areas.
- Zoning and land use planning
- Ecological/environmental
- Hazards / environmental
- State level policy and guidance
- Local policy guidance
- Land title restrictions
The City Hill Site Analysis Executive Summary gives an overview of the key implications for development and consideration of options for both the northern and southern areas of the site. This summary has been extracted below:
- In land use planning terms, there are a number of key site characteristics and controls of note. For example, the current land use zone across the vegetated / northern portion of the subject site is highly restrictive. On the generally cleared / southern portion of the subject site, the prevailing zone is much less restrictive. Similarly, whilst all greenfield / undeveloped land is likely to have some form of environmental constraints, the northern portion of the site has a number of notable environmental and hazard related constraints - including those associated with the vegetation (e.g. koala habitat and endangered ecological communities), bushfire and substantial slopes. In the southern portion, constraints are generally less pronounced, though bushfire, fauna corridors and the adjoining wetlands (among others) will still require careful consideration prior to development being considered.
- In consideration of land titles, parts of the site are subject to a covenant that generally applies across the northern portion of the site, as well as a large part of the southern portion. This covenant dates to the original purchase of the land by Council from the Commonwealth and essentially restricts the type of possible development to a range of cultural, community and related tourism activities. The range of uses under the covenant is broader than the uses currently allowed under the zone across the northern portion of the site. And conversely, it has the potential to restrict the use of part of the southern portion, particularly with respect to development for residential purposes. The covenant does allow for some development potential or sale of the land, with the Commonwealth’s consent, but stipulates that the proceeds of this are to be used for cultural and community facilities and services on the land.
- In an urban design context, the site is recognised as being outside the Coffs Harbour City Centre as identified in Council’s planning documents. The site surrounds are recognised as being within a relatively low density residential, environmental and open space context. The topography also means that access to and around the site is difficult from a pedestrian and cycle movement perspective without substantial modification. Both State and local level policies, plans and other guidance identify that cultural and community facilities should be based within city centres, reinforcing their role as vibrant and active spaces through a mix of retail, business and cultural uses. Despite historical concepts associated with the site for a range of cultural and civic uses, the subject site’s access and contextual limitations would mean that substantial development of this kind would be contrary to current best practice.
- With the above considerations in mind, there remain a number of options available to Council depending on the extent and type of development that may be envisaged at the site.
- On the northern portion of the site, the zone generally restricts possible land uses to those within the “community facilities” definition. This area is further restricted by the covenant, all of which will need to be considered within the context of native vegetation that is present, and the implications of developing on bushfire prone land among many other constraints. Previous large-scale proposals are unlikely to be possible in a modern context and with current land use polices, with substantial upfront costs being needed to entertain such use with a low likelihood of such development being possible. As a consequence, suggested options for this area would instead include site sensitive / low scale ancillary or complementary community, cultural, environmental and open space related uses that generally retain and enhance the existing environmental attributes, whilst supporting the existing use activities on the site. Examples may include improved nature trails / cultural or artistic walks or retention of the land for environmental purposes.
- On the southern portion of the subject site a number of broader development benefits are apparent, being predominantly cleared and having a scale that would enable future development to cater for a wider range of potential uses, as well as allowing for environmental, bushfire and other site constraints to be effectively mitigated. In land use planning terms, the impact of the covenant on future use options will need to be considered as potential use is further examined. As a locality for substantial cultural facility investment, there is little justification or support to suggest that the area would make for a viable setting. As a consequence, the options for future use of the area could range from a variety of targeted housing opportunities (e.g. student accommodation given proximity to the university, an affordable housing scheme, retirement / seniors housing), recreation / open space facilities, smaller scale community-based activities, through to an opportunity to maximise returns to Council to enable reinvestment in facilities off-site.
3. Broad City Hill Development History
A number of proposals have been identified specifically for the City Hill site over a period extending from the late 1980’s.
The Site Analysis details the development history of the site and is listed below as follows:
- 1988 - Substantial concept plan for the Henry Kendall Arts Centre - incorporating regional art gallery, library, theatre studio with rehearsal space, auditorium, regional museum, community arts / workshop studios, local government offices, convention centre, visitor information and visitor accommodation.
- 1994 - Development application for regional gallery, artist studios, Bunker Gallery and community hall only. The Bunker Gallery (now the National Cartoon Gallery @ the Bunker) and community hall (now Bridge Club) were constructed, alongside access roads and associated building services. A subsequent application was made to subdivide the Bridge Club site which was subsequently sold.
- 2010 - Development application for the subdivision of subject site to establish clearer delineation between the vegetated and predominantly cleared areas of the site. The application was never acted upon and has lapsed.
- 2018 - Development application for the expansion of the National Cartoon Gallery @ the Bunker which is currently under construction.
Whilst the 1988 concept and 1994 development application identify the potential future development of the subject site for a range of cultural, civic and community activities, the majority of these have never been fully assessed or approved on the subject site.
4. Issues and Options Analysis for Performing Arts Spaces – Indoor and Outdoor (Stage 2A) – Interim Findings
Planning for and discussion of location for performing arts infrastructure for both indoor and outdoor venues has been considered by Council over many years. Within the community and stakeholders there is significant variance over the definition of what a performing arts centre or entertainment centre is, what is needed, the costs/revenue of venues, specifications and location.
As reported separately on this Council agenda, the Issues and Options Analysis for Performing Arts Spaces – Indoor and Outdoor (Stage 2A) planning project aims to identify and clarify the needs (outcomes, and opportunities) of performing arts space infrastructure, both indoor and outdoor across the LGA and identify options for Council to consider.
Interim findings from Stage 2A have indicated that the preferred location for an indoor performing arts space is within the City Centre Masterplan area. Findings for outdoor performing spaces have not identified City Hill as a preferred site at this stage.
Stage 2B of this planning project is expected to address feasibility and specific sites after consideration of options if endorsed by Council.
5. Draft Community Facilities (includes Cultural Facilities) Plan (in development)
Planning and research is underway for community facilities (includes cultural facilities) planning across the LGA in 2019/20. The Draft Community Facilities Plan (in development) is similar to the Council Sports Facilities Plan in that it provides strategic direction, if adopted, for Council now and into the future.
This planning project has been identified as an action in Creative Coffs - Cultural Strategic Plan 2017-2022 and in the Operational Plan. A review and audit of Council's community facilities and venues is underway that includes community and youth centres, halls and other indoor and outdoor venues (including cultural facilities and performing arts spaces).
When completed, this planning project will identify cultural or community facility needs that may be considered suitable for cultural development of the southern portion of the City Hill site.
3. Resolve to not proceed with scope and concept planning for the Northern/vegetated area of the site until the Community & Cultural Facility planning and associated consultation process has been finalised.
4. Resolve not to adopt the recommendations of this report.
Option 1 is recommended as the suitable course of action in order to progress to concept design stage.
There are significant environmental implications for future development of the site as outlined in the Site Analysis (Attachment 1) with respect to environmental, ecological, hazards, heritage significance and accessibility. These will need to be considered and addressed by Council in any future concept planning.
Significant social, cultural and liveability benefits can result from cultural development. Creative Coffs – Cultural Strategic Plan 2017-2022 outlines these benefits within the LGA.
Civic leadership is shown through the ongoing implementation of MyCoffs Community Strategic Plan. Cultural development activities assist to achieve the A1.1 goal of a vibrant and inclusive place.
• Economic Implications – Broader Economic Implications
Creative Coffs – Cultural Strategic Plan outlines the economic, cultural and liveability benefits that cultural development and creative industries provides to the LGA.
The remaining budget 2019/20 for the City Hill Cultural Development project as at November 2019 is $56,726. Due to limited staff and design resources available, it is proposed that a scope of work be prepared for a consultant to progress the consultation, concept designs and costing estimates for the next stage of the project.
There is a risk that the budget may not be sufficient for the required environmental, heritage, community consultation, costing or other reports to be undertaken as well as concept design.
There is a risk that the outcomes of further studies or investigations may highlight further work or considerations not identified to date.
Stakeholder engagement was undertaken in 2017. The preparation of the various studies and research involved consultation with a range of stakeholders across the organisation.
During the first half of 2020, there will be opportunities for community consultation and input for the Stage 2A) Issues & Options Discussion Paper for Performing Arts Spaces (indoor and outdoor) interim findings and the draft Community Facility (includes cultural facilities) Plan.
Further community and stakeholder consultation and input would be required should Council resolve to commence with concept planning and costing for the northern/vegetated area of the site.
- Creative Coffs – Cultural Policy and Cultural Strategic Plan 2017-2022
- Coffs Harbour Local Growth Management Strategy
- Open Space Strategy 2010
- NSW Cultural Infrastructure Plan 2025+
A consultant brief for quoting purposes for the concept plans and associated studies and consultation activities could be prepared in early 2020. The draft Community Facilities Plan is targetted to be completed for Council’s consideration by mid 2020.
Studies and research have been undertaken in order to recommend the scope for concept designs and preliminary costings for cultural development at City Hill. It is proposed to commence the concept design process for the northern/vegetated area of the site for low level ancillary and integrated facilities to National Cartoon Gallery, such as a sculpture walk and/or studios that generally retain and enhance the existing environmental attributes. It is recommended that Council consider a report on the preferred use options for the southern area of the site once the broader Community Facility planning process and Issues & Options Discussion Paper for Performing Arts Space (indoor and outdoor) has been finalised.
Author: Section Leader Community Programs
Attachments: ATT1 SC19/69 Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024 (Revised Final) ⇩
At its Ordinary Meeting of 10 October 2019, it was resolved that Council:
1. Endorse the Draft Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024 for public exhibition for a period of 28 days.
2. Receives a further report on the outcomes of the public exhibition process.
The Draft Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024 was placed on public exhibition from 16 October to 13 November 2019.
The public exhibition of this draft plan and the invitation for public submissions were advertised in local media and promoted on Council social media channels. Project stakeholders were advised by email and an information stall was also provided at the Harbourside Markets at the Jetty Foreshores on 3 November.
Internal feedback was received during the public exhibition period, as outlined in the issues section of this report, and the Plan has been revised accordingly.
No issues were identified as a result of the public exhibition process from external stakeholders or the wider community.
Internal staff feedback during this period identified that Section 2.3 of the Plan, relating to Policy and Legislative Setting, should be revised as it quoted from the stated references without providing adequate context. This section has been revised accordingly and does not change the intent or strategy objectives and actions in any way.
As stated in the previous report to Council on this subject, the Lifeguard Service Strategic Plan outlines the desired future service delivery direction of the Lifeguard Service for the Coffs Harbour LGA and also provides Council and its partner organisations involved in beach safety, emergency response and education with a strategic framework to work within.
It has a focus on managing risks associated with using beaches, service evaluation and continuous improvement. It also provides an overview of Council’s Lifeguard Service, including its history and current service levels and outlines recent drowning related statistics and trends.
Five core future service requirements have been identified and are summarised below:
1. To sustain high quality beach patrol services commensurate with the increasing demands being placed on the services. Growth in service provision will need to be carefully monitored with recognised hot spots - particularly around the Jetty Beach to Park Beach area - to be prioritised in the short-term;
2. A clear hierarchy of service provision, through defined and consistent service tiers for each beach patrol location - including a stronger correlation of service provision between Council Lifeguards and volunteer Surf Life Saving Clubs (SLSC);
3. The level of supporting infrastructure for patrol and emergency response needs to be comparable with these hierarchical needs. This includes storage facilities, safe elevated viewing platforms and plant and equipment;
4. Education services will become more critical in support of prevention rather than reaction. Both in maintaining the successful school based programs and continuing to identify and engage at-risk communities, including CALD communities; and
5. Need for the ongoing improvement of relationships and understanding between Council’s Lifeguard Service and volunteer SLSC and respective peak bodies.
The recommended strategic directions are considered to be relatively low cost when compared to the services provided and their importance to both the community and the visitor economy. Ensuring that sufficient financial resources are available and allocated to minimise identified risks is key to ensuring the provision of an effective Lifeguard Service.
The proposed actions outlined in the Plan will require additional resources over the five-year implementation period (2019-2024) and are subject to the priorities of Council. An outline of the estimated additional base resourcing required (identified within the Plan) is provided below. A more detailed breakdown is contained within Section 5 of the Plan (see Attachment 1).
Timeframe/priority
Resources required (est.)
Beach Patrols – Jetty Beach Establishment
$10,000 setup + $35,000 ongoing
2019/20 trial funded via quarterly budget review process 14/11/19
Beach Patrols – Sawtell Beach Additional Support
$9,200 ongoing
Beach Patrols – Park Beach Additional Support
$20,000 ongoing
Skills and Training with SLSCs
$5,000 per exercise
Emergency Response Training with SLSCs
School Education Program Review
$3,000 ongoing
CALD Education Program
$23,400 ongoing
Providing Accessible Services – Beach Mat and Beach Wheelchairs
$40,000 capital
Funded via quarterly budget review process 14/11/19
Additional Services to Support Community Events
$5,000 ongoing
The resourcing required for some actions within the Plan are not yet estimated as the actions first require monitoring or further investigation to confirm.
The Lifeguard Service Strategic Plan will assist in seeking funding and partnership opportunities for the Lifeguard Service as it sets out clear direction and priorities.
Inclusive Beach Access
Council resolved on 26 September 2019 to consider the allocation of the necessary resources in the first quarter budget review process to provide inclusive beach access facilities at Jetty Beach through the provision of a pilot lifeguard patrol over the Peak Summer period in 2019/20, including a beach mat service and additional suitable beach wheelchairs for hire. Funding was confirmed to implement this resolution through the quarterly budget review process that was approved by Council on 14 November 2019. The Lifeguard Service Strategic Plan aligns with and supports this resolution. Inclusive visitor economy is a rapidly growing market segment and provision of accessible beaches and associated infrastructure and services not only has benefit for locals with mobility issues but also provides the City with new inclusive visitor economy opportunities that can be promoted.
On a yearly basis, the Coffs Coast currently attracts approximately 3.09 million domestic visitor nights and 843,000 international overnight visitor nights as well as over 915,800 day trippers. The visitation statistics are on an upward trend. Tourism Australia statistics show that 61% of all people visiting the Coffs Harbour area are here purely for holiday or leisure. It is also acknowledged that the primary reason for 49% of the total visitors coming to our area are our beaches, reinforcing the importance of beach lifeguard services for managing the safety and maintaining the confidence of visitors to our beaches and coastal environment.
1. Accept the recommendation in this report and adopt the final Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024;
2. Reject the recommendation and not adopt the final Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024; or
3. Amend the recommendation of this report.
There are no identified adverse environmental impacts in adopting the Lifeguard Service Strategic Plan.
There are no identified adverse social impacts in adopting the Lifeguard Service Strategic Plan.
The Plan recognises the significant demographic and industry trends anticipated over the next five years and proposes future direction and improvements aimed at maximising community safety outcomes.
The Lifeguard Service Strategic Plan supports the following objectives within the MyCoffs Community Strategic Plan:
- We foster a sense of community, belonging, and diversity (A1.2)
- We support our community to lead healthy active lives (A2.1)
- We cultivate a safe community (A2.4)
- We undertake development that is environmentally, socially and economically responsible (C1.2)
- We undertake effective engagement and are informed (D2.1)
The adoption of the Lifeguard Service Strategic Plan may have positive implications for the broader local economy. The provision of an effective beach patrol program through Council’s Lifeguard Service supports the local tourism economy, as the area’s beaches are a major drawcard for visitors. Visitation is increasing and therefore the provision of safe and accessible beach facilities that can meet this demand is a key consideration for Council.
The adoption of the Lifeguard Service Strategic Plan has no immediate Delivery Program or Operational Plan implications.
The Plan outlines a number of Lifeguard Service improvements and extensions that will need to be considered against Council-wide funding priorities within internal budget review processes and future Delivery Programs if they are to be implemented. An indication of some of the resourcing considerations are outlined within the Issues section of this report.
The Lifeguard Service Strategic Plan provides a planned and considered approach to managing beach and water safety services across Council controlled beaches in the LGA, including emergency response and preventative education programs. The proposed strategies and actions within the Plan have been developed in order to provide a measured and realistic risk management approach that can be prioritised within Council’s available resources.
The risks associated with not having a strategic plan in place are disorderly or inadequate service delivery and reduced capacity to secure required operational and capital resources.
The Lifeguard Service Strategic Plan was developed using a range of targeted consultation activities that included Council’s Lifeguard Service staff, Surf Life Saving Clubs representatives, local schools, local resettlement agencies, Council staff, and representatives from Council’s Disability Inclusion and Access Advisory Committee, Multicultural Reference Group and Yandaarra Aboriginal Advisory Committee.
The Draft Plan was placed on public exhibition from 16 October to 13 November 2019 and was advertised in local media and promoted on Council social media channels. Project stakeholders were advised by email and an information stall was also provided at the Harbourside Markets at the Jetty Foreshores on 3 November 2019.
Council’s lifeguard services are provided under the provisions of the NSW Local Government Act 1993 and are operated in accordance with the NSW Office of Local Government Practice Note 15 - Water Safety Standards. The Lifeguard Service Strategic Plan has been developed within the scope of this regulatory framework.
Following Council’s adoption, the Plan will be implemented immediately.
The public exhibition period received no submissions from external stakeholders or the wider community. Internal feedback enabled the wording of one section of the Plan to be improved with no impact on other sections of the Plan.
This report recommends that Council adopts the final Coffs Harbour City Lifeguard Service Strategic Plan 2019-2024.
Attachments: ATT1 SC19/70 West Woolgoolga Sports Complex Masterplan and Northern Beaches Multi Purpose Centre Floor Plan ⇩
ATT2 SC19/70 West Woolgoolga Sports Complex Project Update November 2019 ⇩
The Building Better Regions Fund (BBRF) Round 4 infrastructure projects stream is now open. Successful projects under the competitive grant funding opportunity will receive grants of up to $10 million, from a pool of $200 million.
Round 4 of the BBRF is aimed at supporting drought-affected regions by targeting projects that will benefit communities affected by drought. Applications will be required to provide evidence to support this claim, which could include projects located in a locality drought declared by the relevant state or territory government.
NSW Department of Primary Industries (DPI) maps five phases of drought:
- Intense Drought
- Drought Affected
- Non Drought
According to the DPI map, within the Coffs Harbour local government area, the northern part of the LGA has been declared as ‘drought’, whereas the southern part of the LGA is ‘drought affected’. Accordingly, the project put forward for Council’s consideration services the northern area.
West Woolgoolga Sports Complex Project
The West Woolgoolga Sports Complex (phase 1) is an important community facility, supported by the adopted Coffs Harbour Sport Facility Plan 2016 and Coffs Harbour Indoor Sport Study, and has strong support from the Woolgoolga and Northern Beaches communities.
- West Woolgoolga playing fields: playing fields to cater to AFL, Cricket (including cricket nets and a synthetic wicket) as well as Touch Football, and multi use fields, lighting, drainage, and an amenity block (stage 1).
- The Northern Beaches Multi Purpose Centre: will deliver 2 indoor courts, change rooms, multi-purpose rooms, stage and kitchen (stages 1 & 2).
- Associated civil works including roadways, paths, carparks and services (currently a greenfield site).
An overview of the West Woolgoolga Sports Complex masterplan, Northern Beaches Multi Purpose Centre floorplan, and recent community project update are attached.
While this project appears to offer the most alignment with the drought criteria specific to the Coffs Harbour local government area, it is noted that there are many areas of regional NSW who are much more severely affected by drought.
Project Components and History
As previously reported to Council, the playing fields and some of the associated civil works have been planned for many years, supported by the Sports Facility Plan 2011 & 2016, and Council has been collecting (and plans to further collect) section 7.11 open space developer contributions towards these aspects of the proposal.
The Northern Beaches Multi Purpose Centre component has been a priority of the local community for many years and the location was confirmed in the Sports Facility Plan 2016.
While there are three distinct components to the project, delivering this community facility as one project will provide the best community outcome possible, and will also provide the best economies of scale in cost, time and resource management.
The total project cost for construction is estimated at $23,144,000. As previously reported to Council, there is contingency built into these costings while the detailed design is being finalised. It should be noted that the design is significantly progressed enough that the development application has been lodged and is expected to be considered by the Northern Regional Planning Panel by March 2020.
Detailed design is progressing following Council’s allocation of funds from the Community Facilities Reserve in 19/20, with further funds from the community facilities reserve required to complete the detailed design in 20/21. Should the grant be successful, the detailed design can be delivered in tandem as construction begins on other components.
NSW Government Election Funding Commitment
Council has recently received written confirmation of the NSW Government’s election commitment of $8 million towards the Northern Beaches Multi Purpose Centre component of this project. The BBRF guidelines allow this to be used as part of Council’s matching funding.
Staff are currently negotiating the milestones for this funding commitment in consultation with Department of Premier and Cabinet, the first of which is for Council to secure the remaining funding to progress the construction project (noting that Council has no identified funding for construction of the NBMPC component including increased civil requirements). A successful BBRF application and confirmation of Council funding as outlined below would meet this milestone.
$1,527,950
$1,587,950
Council previously resolved to progress both the development application and detailed design and has already committed $760,000.
The additional contribution to finalise detailed design is anticipated to be $827,950 from Community Facilities Reserve in 2020/21.
Note that planning and detailed design is funded by Council and will continue, regardless of the BBRF application, and will not form part of the application.
Construction of the project forms the basis of the BBRF4 application. The budget breakdown is:
$4,021,778
$3,513,167
$15,609,055
$23,144,000
Construction budgets include contingency.
If the BBRF4 application is successful, the $23,144,000 construction project will be funded as follows:
Council contribution*
NSW Government Election commitment
Australian Government BBRF4
*Council has currently committed $985,000 towards construction:
- $985,000 towards construction (Section 7.11 contributions collected)
Council’s additional contribution may be funded via:
- $3,496,000 internal water / sewer fund loan (to be recouped from S7.11 developer contributions)
- $663,000 water and sewer contribution (one off from water and sewer fund 20/21)
If the BBRF funding is successful, a further report will be brought back to Council to confirm the Council contribution.
The BBRF is a competitive program with decisions on projects to be funded based on, amongst other things, information provided in the application and supporting documents. For BBRF Round 4 specifically, drought affected status will be an important component of the assessment. It is acknowledged that relative to other areas, Coffs Harbour is not as severely impacted by drought.
Financial risk needs to be managed through ensuring that cost estimates for a project submission are backed through appropriate levels of design and quantity assessment and contingencies, which as noted above, have been included.
The Northern Beaches Multi Purpose Centre Committee was set up by the Woolgoolga and Northern Beaches Chamber of Commerce, and also includes representatives from the Residents Association, Woolgoolga Sports Council, and various sporting, cultural and community groups from Woolgoolga and the Northern Beaches. The community have been actively campaigning for this facility for many years and will continue to play a key stakeholder role throughout the project.
Council has undertaken considerable stakeholder consultation with national and state sporting organisations around the development of these facilities, as well as with local sports and stakeholders during the preparation of the Coffs Harbour Sports Facility Plan 2016 and Coffs Harbour Indoor Study, including Northern Beaches Multi Purpose Centre concept and feasibility report. Initial stakeholder consultation is underway in regards to Council’s Community Facilities Plan with the consultant asked to provide relevant initial findings into the multipurpose aspects.
The project is supported by Council’s Delivery Program and Operational Plan, Sports Facility Plan 2016, Coffs Harbour Indoor Sport Study, Open Space Developer Contributions Policy.
Applications for BBRF4 close on 19 December 2019, so if endorsed by Council, the application will be lodged within days. Announcement of successful BBRF Round 4 projects is expected in mid 2020. The BBRF projects must be able to commence within 12 weeks of signing the funding agreement and be completed by December 2022.
This report identifies the Council project which seems most likely to meet BBRF Round 4 eligibility and assessment criteria. If successful, the funding would mean that all three levels of government would be working in alignment to deliver this important project for the Woolgoolga and Northern Beaches community.
Attachments: ATT1 SC19/71 CONFIDENTIAL Tender Assessment Contract No. RFT-1168-TO
That Council considers tenders received for Coffs Coast Regional Sports Hub Stage 2 –Turf Field with Subsoil Drainage and Irrigation - Design and Construct, Contract No. RFT-1168-TO, and adopts the recommendation as detailed in the confidential attachment to this report.
At the meeting of 26 April 2018, Council resolved the following:
That Council Submit an Expression of Interest for the NSW Government’s Regional Sports Infrastructure Fund (RSIF) for the Coffs Coast Regional Sports Hub – Stage 2.
As Council is aware, the grant submission was successful and the project has commenced.
The overall project comprises multiple sub projects, however this particular report is specifically regarding the tender for the design and construction of a turf field with subsoil drainage and irrigation.
Tenders were advertised through the Tenderlink system, and were sought on the open market to provide a lump sum price. Tenders closed on Thursday 30th October 2019 with a 90 day validity period.
- Relevant experience and references
- Construction method and construction program
- Quality and health & safety management systems
Three tenders were received from the following companies (listed alphabetically):
- Amgrow Australia Pty Ltd – trading as Nuturf
- Sport Build Pty Ltd
- Turf Drain Australia Pty Ltd
Refer confidential tender report (Attachment 1).
2. Amend the recommendation. This would pose significant contractual issues and financial risks. The project is subject to grant milestones and financial budgets which would be jeopardised if the contract is not awarded.
The proposed works have been subjected to an appropriate level of assessment for environmental and cultural heritage matters under Part 5, Environmental Planning and Assessment Act 1979 and Regulation 2000 (Section 228).
By providing an improved comprehensive range of sporting facilities that cater from local through to elite requirements, the project is aimed at growing participation and pathways across a range of sports at all levels, and to physically and strategically connect stakeholders with synergies in sport, health, well-being and education.
Construction of the turf field will increase the fields available for general usage and enhance the quality of the infrastructure to attract regional, state, national and international events. Field lighting will be installed under a separate contract.
The Coffs Coast Regional Sports Hub Program stage 2 project has four main objectives:
1. To increase the health, well-being and inclusion opportunities for local residents through increased participations levels in sport and active recreation.
2. To partner with State and National bodies to strengthen performance pathways particularly for pre-elite young regional athletes to train and develop their skills near to their family homes.
3. To improve linkages and accessibility throughout the precinct for spectators and participants via shared pedestrian and cycleway pathways within and to neighbouring medical and educational facilities.
4. To strengthen economic benefits from increased sports tourism opportunities for regional, state, national and international events.
There are also substantial long term benefits for the local economy through increased tourism by improving the infrastructure of the Coffs Coast Sport and Leisure Park. A Regional Sports Hub will continue to attract major sporting events and elite training programs. Local athletes will also be able to use the facilities rather than travel to other regional sporting centres.
The contract price is within the budget and meets the milestones as set out in the funding agreement.
All three proponents are companies with a history of high quality works. Risk assessments will be carried out on construction projects throughout the project.
The project is governed by a steering committee and project team. Consultation with sports and user groups was undertaken in the lead up and will continue throughout the project.
The calling, receiving and reviewing of tenders/quotes was carried out in accordance with Part 7 Tendering of the Local Government (General) Regulations 2005
Quotation procedures were also carried out in accordance with Council's Procurement Policy
Council's Tender Evaluation System has been applied during the quotation review process
The project is consistent with the Coffs Coast Sport and Leisure Park masterplan, adopted as part of the Coffs Harbour Sports Facility Plan 2016.
Author: Orara River Rehabilitation Project Officer
Attachments: ATT1 SC19/72 CONFIDENTIAL Tender Assessment Contract No. RFT-1161-TO
That Council considers tenders received for Orara River Rehabilitation Project Bush Regeneration Contract 2019-22 RFT-1161-TO and adopts the recommendation as detailed in the confidential attachment to this report.
The Orara River Rehabilitation Project receives funding from Council’s Environmental Levy as well as external funders including North Coast Local Land Services and NSW Environmental Trust to conduct riparian rehabilitation works within the Orara catchment including weed control, regeneration, revegetation, erosion control works and livestock exclusion fencing. The funds available from existing sources for bush regeneration works is up to $350,000 for the period December 2019 to November 2022.
Tenders were invited electronically via Council’s TenderLink portal and advertised in the Sydney Morning Herald on 17 September 2019 and the Coffs Coast Advocate on 18 September 2019 for a Schedule of Rates contract.
The Tender is a panel contract to be awarded as two components as detailed in the Tender document bundle, with a minimum of three Contractors appointed:
- Tier 1 - Full Service: companies or entities that will undertake the majority (at least 50%) of works across the project area. There will be a maximum of two Full Service contractors.
- Tier 2 - Part Service: businesses, sole traders or entities that will undertake minor works across the project area as required. There will be a maximum of three Part Service contractors.
Invitations for Tenders were called for a Schedule of Rates contract where Tenderers could apply for Tier 1 only, Tier 2 only or both Tiers 1 and 2. Tenders closed at 10.00am on Wednesday 23 October 2019 with a 90 day valid period ending 21 January 2020.
Submissions were received from three Tenderers, namely:
- Coffs Harbour Bushland Regeneration Group Pty Ltd.
- EnVite Environment Inc.
- Bush Dynamics.
One Tenderer applied for Tier 1, one Tenderer for Tier 2, and one Tenderer for both tiers.
Tenders were evaluated on the following criteria as listed in the Tender document:
- Price – Schedule of rates.
- Core bush regeneration and revegetation planting works.
- Landholder and project manager liaison.
- Workplan and reporting.
Evaluation of the tender submissions and the nomination of recommended contractors are included in the ‘confidential’ section of this report.
The contractors recommended as successful tenderers have demonstrated that they have the required skills and experience to carry out the project effectively.
All tenderers met the selection criteria, with the scoring differences apportioned equally to price, core bush regeneration experience, landholder liaison and work plan and reporting.
Given the continuous nature of works on this project the options are necessarily limited to:
1. Adopt the recommendation. This would allow the project to continue without interruption to existing workplans and grant-funded projects.
The Orara River Rehabilitation Project aims to improve the water quality and river health within the Orara catchment through the exclusion of stock from the riparian zone, erosion control, weed control, regeneration, and site maintenance. Project sites form vegetation corridors within the Orara Valley which link with forested hill slopes under National Park and State Forest tenures.
The tender contains a landholder liaison component which requires the successful tenderer to encourage landholder participation in project activities and an ongoing commitment by landholders to site maintenance. This is intended to build landholder capacity to manage environmental impacts, actively participate in the project and be involved in long term site maintenance.
The tender process is undertaken by the use of tendering policy guidelines and requirements which is considered open, transparent and equitable.
The Tender Selection Panel consisted of a representative of the Orara Valley RiverCare Groups Management Committee, contributing to Objective D1.1 of the Community Strategic Plan to foster informed and inspired leadership in our community. The Orara River Rehabilitation Project contributes to Objective C2.1 of the plan to have active programs to restore and improve the natural environment.
Bush regeneration businesses have significant local knowledge of the physical requirements of project sites and understand the need for positive relationships with landholders. The tender funding continues to support local employment and drive micro-economic benefits into rural areas.
Expenditure for the contract has been allocated from Environmental Levy funds, and from external grant funding from the NSW Environmental Trust, Federal Smart Farms grants, and North Coast Local Land Services. There is up to $350,000 available over the contract period to conduct Orara River Rehabilitation Project Bush Regeneration.
All Contractors are registered with BNG Conserve, the contractor risk management system which Council uses.
In accordance with Council’s tender selection process, all tenders remained confidential and were assessed independently by each member of the Selection Panel. Council’s Procurement team was also consulted throughout this Tender process to ensure the Tender process and probity was maintained.
Tendering procedures were carried out in accordance with Council's policy. Council's Tender Evaluation System has been applied during the tender review process.
Implementation will be immediately following the Council meeting to ensure continuity of project works and the ability to continue to meet timeframes set by the external funding bodies.
After evaluation of the three received tenders, the assessment panel has recommended acceptance of tenders for a single Tier 1 (full service) contractor and two Tier 2 (part service) contractors as detailed in the confidential attachment.
Author: Building & Open Spaces Strategist
It was found through investigations that due to the onerous engineering requirements, high capital costs, high maintenance requirements, rigorous approval process, long term risk of erosion and inundation and potential impacts on coastal processes, it is recommended that the Council do not proceed with a permanent access ramp but instead proceed with the trial of the Mobi- mat and associated low cost, low risk initiatives to provide the needed access to the hard sand and water.
This report is provided in response to Notice of Motion (NOM) 19/11 in which Council resolved at its meeting on 26 September 2019:
That Council bring back a report exploring the options of a permanent ramp to the North Eastern side of Jetty Foreshores amphitheatre steps which is suitable for disabled access.
A report was also presented to Council on 26 September 2019 in which it was resolved:
1. Note the attached Inclusive Beach Access Issues and Options Paper.
2. Confirm Jetty Beach, Coffs Harbour, as the priority for development of inclusive beach access facilities in the LGA.
3. Consider the allocation of $85,000 at the next Quarterly Budget Review to enable the progression of the Implementation Plan in 2019/20 as outlined in the Inclusive Beach Access Issues and Options Paper, including the pilot lifeguard patrol at Jetty Beach over the Peak Summer period, procurement and installation of a Mobi-mat for this location, procurement of two additional Hippocampe type beach wheelchairs and make these available for hire.
4. Report back to Council on the results of the Jetty Beach pilot lifeguard patrol and installation of Inclusive Beach Access service.
The current access provisions from the Jetty Plaza area to the beach include an existing ramp that has been designed to be fully accessible in accordance with the Australian Standards AS1428 Design for Access and Mobility. It is sloped at 1:14 and has handrails both sides. It was designed to be usable by vehicles to allow for accessibility to the water by vehicle. The proposed Mobi-mat will extend from the existing ramp. There are also 2 sets of steps with handrails providing access to the seat steps and to the beach situated to the north of the ramp and at the southern end of the plaza.
A ramp leading from the plaza on the eastern side of the steps to meet the hard sand (location varies) would need to zig zag a number of times to meet the gradient required by the Australian Standards for Access. The total length would be in excess of 50m. It would also need to perform the function of sea wall and retain the adjacent road resulting in a substantial engineering structure. A possible configuration is shown below.
The structure would need to be appropriately engineered with suitable scour protection to withstand coastal processes in a highly dynamic area. The adjacent sea wall and road would require a redesign and potential alteration in conjunction with the new ramp. The ramp would require a maintenance regime to deal with constant sand build up around it which would limit or preclude the use by wheelchairs at times.
There would be an extensive approval process as this structure would likely be considered “Coastal Protection Works”. As it is not in a certified Coastal Management Program, development approval would be required and it would need to go to the Joint Regional Planning Panel for determination. The scale of the structure may trigger the need for a Cost Benefit Analysis under the Coastal Management Act 2016.
The area is mapped as a zone of “almost certain” beach erosion hazard in the Coastal Zone Management Plan in coming decades. Under these conditions and in conjunction with rising sea levels the ramp would be unusable for periods of time.
The Mobi Mat trial will provide an economical, low risk alternative to a permanent ramp. The Mat is more flexible than an expensive permanent ramp that can be adjusted to respond to changing beach conditions so that it remains on top of the sand at all times. It can be shortened or lengthened as needed to respond to the changing water levels.
2. Proceed with the concept design and costings including study of environmental impacts, approvals and functionality of a permanent ramp. Note that this would need to be programmed in 2020/21 so as to not impact on the current works program.
3. Adopt the recommendation but reconsider the option for a permanent ramp in the future at the time that the results of the Jetty Beach pilot lifeguard patrol and installation of inclusive beach access service is reported back.
Extensive coastal engineering and environmental investigations would be required to determine the effects of this new structure on coastal processes including studies of sand movement, adjacent structures, surf conditions and flora and fauna. Future impacts of climate change including rising sea levels, erosion and inundation that are mapped for the jetty area will cause structural damage and reduce the asset lifespan. These processes would also cause the ramp to be less accessible over time as the end of the ramp would be increasingly inundated with water.
Alternatively, there are no perceived environmental impacts associated with the Mobi-mat as it is portable infrastructure that is temporarily installed over soft sand across identified pedestrian access paths and is made from 100% Recycled Polyester.
Inclusive beach access provides for greater access to nature and open spaces, as well as participation in recreational activities and Australian beach culture that is synonymous with the region. The ramp may not provide access to the beach all the time due to constant sand accretion on the structure and variable tide heights however a Mobi-mat can be adjusted to suit beach conditions and continue to provide access in a range of situations.
Council's Disability Inclusion Action Plan (2017) highlights Council's commitment to "Create Liveable Communities" where the "Improve access to Council owned public spaces and streetscapes" section specifically refers to this matter: Review beach access for people with mobility issues including the use of beach wheelchairs and beach mats and provide recommendations for improved access.
Provision of inclusive beach access facilities demonstrates Council’s commitment in implementing its MyCoffs Community Strategic Plan objectives:
- We facilitate positive ageing (A2.2)
- We nurture mental health, wellbeing and social connection (A2.3)
- We effectively manage the planning and provision of regional public services and infrastructure (D2.1)
Preliminary cost estimates for a ramp in this location are between $350,000 to $500,000. The estimates do not include any additional work that may be required on adjacent structures e.g. the rock sea wall or adjacent roadway. Costs are not based on any detailed engineering plans or studies and are approximate.
There are no impacts on the operational plan if the recommendation is adopted.
If Council chose to request further design and investigations, they could not occur until next financial year 2020/21 due to resources currently fully committed to deliver this year’s capital works program. The potential project would need to be considered against other funding and resourcing priorities within the delivery program for 2020/21.
The risks associated with considering a permanent ramp include:
- Adverse effects on coastal processes including exacerbation of erosion
- Long term risk of rising sea levels, erosion and inundation to usability and structural stability of the ramp
- High cost/low benefit due to ramp being covered with sand or water at sometimes thereby limiting access
- High initial capital cost due to engineering requirements
- High ongoing maintenance costs due to need to remove sand regularly from the structure
- Potential for the ramp not to get through the rigorous external approval processes
The risks associated with the provision of a beach mat at Jetty Beach and additional beach wheelchairs are relatively low and easily mitigated.
Beach access issues were explored with the Disability Inclusion and Access Advisory Committee prior to the preparation of the report on the trial of a Mobi-mat. Internal consultation with Sustainable Communities staff and the Coast and Environment Officer was undertaken for this report.
- NSW Disability Inclusion Act 2014
- Coffs Harbour City Council Disability Inclusion Action Plan 2017-2021
Jetty Beach is currently the most suitable location identified in the LGA for inclusive beach access. There is an existing access ramp and stairs to the soft sand. Due to the onerous engineering requirements, high capital costs and potential impacts on coastal processes, it is recommended that the Council do not proceed with a permanent access ramp but instead proceed with the trial of the Mobi- mat and associated low cost, low risk initiatives to establish whether this would provide the needed access to the hard sand and water.
At the Council Meeting of 12 September 2019, Council resolved in part that:
Based on the 2013/2014 community consultations for the special rate variation and determined agreed level of service, prepare a report to be presented [sic] first Council meeting in December 2019 outlining the number of assets listed at condition 4 and 5 and the estimated cost to bring them up to satisfactory standard.
In practical terms, this resolution is asking for an estimation of backlog, by an alternative method to that which Council currently uses in Special Schedule 2 of its Annual Financial Statements. The following sections detail the prescribed calculation methodologies and provides estimates based on each of these methodologies for comparison.
Backlog, also referred to as ‘cost to bring to satisfactory standard’, is defined in the ‘Code of Accounting Practice and Financial Reporting (Update 25) – Special Schedules’ as:
Estimated cost to bring to a satisfactory standard (BTS): ‘Satisfactory’ is defined as “affording satisfaction; fulfilling all demands or requirements” (The Australian Macquarie Dictionary). The estimated cost to bring assets to a satisfactory standard is the amount of money that is required to be spent on an asset that is currently not at the condition determined to be satisfactory by the council and community. This should not include any planned enhancements. However, it is noted that in practical terms, the asset will be renewed to condition 1 at the time of work. Unless the council has undertaken consultation with their community and has agreed to a condition level for Council’s assets, the BTS should be measured against the condition 2 rating of ‘Good’ as stated in the Integrated Planning and Reporting Manual for local government in NSW.
In analysing the above definition, it is clear that there are two ‘allowable’ methods for backlog calculation:
OLG Method 1) The amount of money that is required to be spent on an asset that is currently not at the condition determined to be satisfactory by the council and community (ie. Council’s current methodology).
OLG Method 2) Unless the council has undertaken consultation with their community and has agreed to a condition level for Council’s assets, the BTS should be measured against the condition 2 rating of ‘Good’ as stated in the Integrated Planning and Reporting Manual for local government in NSW.
Council’s Current Policy on Calculating Backlog
Council currently uses OLG Method 1 for the calculation of backlog. To determine what the community determines to be ‘satisfactory’ Council conducted extensive engagement with the community about levels of service across all its activities – not only those related to infrastructure – in 2014.
The process gave participants an opportunity to choose the level of service they preferred, having regard to the cost to the community of providing that chosen level of service. Based on this feedback, which was reported to Council’s ordinary meeting of October 2014, Council resolved to apply for a Special Rate Variation (SRV) to fund increased asset maintenance and renewal.
Following this process and a successful application for the SRV, Council reviewed its calculation of the backlog to follow OLG Method 1 above.
Council concluded that the community had indicated during the consultation that they were willing to pay the SRV increase to maintain the current level of services, but were not willing to pay more than the SRV to improve the level of services.
This finding means that, from the community’s perspective at least, the current condition of Council’s assets was (and is) ‘satisfactory’ and, following OLG Method 1, there was (and is) effectively no renewal backlog.
However, Council also recognised the importance of identifying assets that present an unacceptable level of risk (either social, safety, financial or environmental) distinct from those that may simply be in poor condition in the eyes of the community.
In view of this, Council’s Asset Management Policy establishes an additional (to OLG Method 1) principle that:
The backlog for renewal and the shortfall in maintenance of assets will be reported based on the risk of any asset, (assessed under Council’s Risk Management Policy) being deemed unacceptable (requiring immediate action rather than inclusion in future works programs), in which case it will be reported as the cost of undertaking this renewal or maintenance work. ‘CHCC Asset Management Policy’, endorsed by Council in June 2017.
This approach provides the following benefits:
- It provides a safety net whereby high-risk asset defects that Council has insufficient budgets to address in the current year’s Operational Plan are identified as ‘renewal backlog’
- It limits the inclusion of low risk assets that are in poor condition, and that do not serve a significant enough function nor a significant enough number of residents, in which case fixing the asset may represent poor value for ratepayers across the LGA.
- It limits inclusion of assets in ‘reasonable’ but not ‘good’ condition that are still functional, that could do with a ‘face lift’, but in an environment of constrained budgets do not represent good value for money to renew now.
All three of these points are genuine and critical inputs into the reality-based decision making that is actually required in Council’s day to day management of its asset base.
All three points are ignored by OLG Method 2, which renders OLG Method 2 essentially valueless as a decision-making tool for the purposes of Council’s Asset Management Framework.
Backlog Reported as at 30 June 2019 in FY18-19 Annual Financial Statements
Council reported a backlog of zero in the FY18-19 Annual Financial Statements based on the currently adopted Policy position for backlog calculation (ie. OLG Method 1).
Current Best Estimate at 30 November of Backlog Using Adopted Policy (OLG Method 1)
Asset condition data is reassessed on a continual basis. Current data, if reported as at 30 November 2019, would indicate greater than zero backlog figure using OLG Method 1.
A recent Open Spaces revaluation and condition assessment program has determined that the condition of a number of existing playground softfall assets presents an unacceptable risk if not treated in the short term, and there is no uncommitted budget available to renew these prior to any future budget revision being approved by Council. Renewal of these softfall assets would cost $1.2 million.
A recent risk assessment of the Jetty Structure indicates that much of the timbers are wearing out in timeframes that are significantly less than the expected lifespan of the asset. Full Renewal of the Jetty Structure would cost in the order of $16 million.
Additionally, external consultant reports present assessments that several pool assets require early renewal. The costs are assessed to be in the order of $6 million.
These high risk and currently unfunded assets meet the criteria for inclusion as backlog under OLG Method 1 (and Council’s current policy) and so a current assessment of backlog, if it was to be reported at 30 November 2019, would be $23.2 million.
However, to achieve fulsome compliance with the OLG methodology the total renewal cost of $23.2 million would need to be reduced by an amount (say 30%) which reflects the cash difference between building a ‘new’ (OLG’s Condition 1) asset and building only a ‘good’ (OLG’s theoretical Condition 2 asset. This would then give a reportable backlog figure of $16.3 million.
Addressing the Resolution’s Key Question
“Based on the 2013/2014 community consultations for the special rate variation and determined agreed level of service, prepare a report to be presented at the first Council meeting in December 2019 outlining the number of assets listed at condition 4 and 5 and the estimated cost to bring them up to satisfactory standard.”
The total number of assets listed in condition 4 and 5 is 5,243. The cost to bring these assets up to satisfactory according to OLG Code of Accounting Standards is, depending on interpretation of the resolution:
a. $23.2 million based on OLG Method 1 which factors in Council’s best understanding of the community’s willingness-to-pay based on the 2013/14 community consultations, OR;
b. $67.5 million based on OLG Method 2 which deliberately precludes the community consultation performed in 2013/2014.
It is important to also note the other key shortcomings of interpretation b):
1. Community consultation, as gauged in 2013-14, indicated that the community would not be willing to pay more for increased levels of asset service i.e. would not be willing to pay more than the agreed SRV to improve levels of service by increasing average asset condition (and therefore “service”) levels.
2. Neither OLG method allows for the recognition that work may actually have been funded but not yet completed.
3. Renewing all assets in condition 4 or 5 does not represent good asset management practice. Sometimes, assets in condition 4 or 5 can continue to provide reasonable or ‘fit for purpose’ levels of service for extended periods of time. ‘Sweating’ assets in this manner can allow reduced overall asset servicing cost to the community, and help facilitate best value asset management, as long as it doesn’t compromise safety risk or deliver an unacceptable service level. Further, some assets which service a very small proportion of the community, and are very expensive to renew, will not always meet ‘best value’ asset management criteria.
4. Due to imperfect asset data in some categories, some condition figures are estimates only and are based on the age of the asset rather than by inspection. This is typical of a proportion of council’s underground assets (water, sewer, stormwater), for not all of these assets have been condition assessed in recent history. In these cases, the confidence in the condition data is unreliable, meaning little confidence can be attributed to the quantum of the backlog calculation.
Some of these issues are demonstrated in the Table below. All items below are included in the calculated OLG Method 2 backlog calculation of $67.5 million.
Cost to bring to 'Satisfactory'
6,068,938
Refurbishment fully funded. Options being finalised
Moonee Water Reclamation Plant
3,722,283
Corindi Water Reclamation Plant
1,826,396
Roberts Hill & Macauleys Reservoir steel structures
3,156,074
Renewal funded in FY19/20
Moonee Reservoir
Various road segments - renewal recently completed or programmed
4,168,532
Road Pavement, Crossmaglen Road, Bonville, Sect 4
Fit for purpose, rural property access road (1.5km section)
Corfes Road, Ulong, Sect 2, Bindarri Nat Park
Fit for purpose, National Parks and Forestry access trail (2.8km section)
Englands Park Sports Field
To be decommissioned.
Sportz Central Roof
Sportz Central Floor Substructure
Recently assessed by an engineer as sound. Asset register to be updated
Bunker Cartoon Gallery Mechanical
Renewal funded by grant received by Bunker Gallery
Deep Sea Fishing Club Roof
Awaiting NSW Government plans for foreshore prior to committing funding
Backlog is not a Useful Asset Management Metric
Neither prescribed method of calculating backlog, OLG Method 1 nor OLG Method 2, are effective metrics for actual Asset Management planning and decision-making. It is for this reason that there is no single agreed method amongst councils on the mechanics of calculating backlog.
Some of the key problems which arise in actually using the OLG’s concept of ‘backlog’ are demonstrated in the following discussion points.
In February, 2015 there was a review of Fit for the Future criteria. The following passages are quoted from John Comrie’s ‘Independent Review of FFTF Criteria (Comrie Supplementary) February 2015’:
“…. there is a high degree of subjectivity by and inconsistency of approach between councils in quantifying asset renewal backlogs. I would be very wary of making financial assessments of councils or comparisons between councils based on this data.”
Comrie further stated that:
“It’s not clear to me how a council’s score for each of these indicators [including backlog ratio] is applied to determine whether it is ‘fit for the future’. Providing that a council has reasonably reliable accounting records and long-term financial planning assumptions and is committed to and is forecasting ongoing achievement of modest operating surpluses (net of capital revenues) I would suggest (prima facie) that it is ‘fit for the future’.”
Following are the numerous issues that can be taken with the backlog reporting calculations:
- It is a snapshot in time, and does not factor in future renewal work which is funded and included in the Operational Plan and Delivery Program.
- It includes assets that are scheduled for decommissioning and which will never be renewed.
- It includes assets that are in poor condition (ie. less than Condition 2), yet still reasonably serve the purpose for which they are intended.
- It is not required to be audited by OLG, nor is it considered auditable by the NSW Audit Office, and hence there is no standardised methodology nor reliance by OLG on the figures that are actually reported across councils.
- Most importantly, OLG Method 2 does not consider the communities’ willingness-to-pay for the asset renewal which are required to improve asset condition and service levels.
Council’s Adopted Approach to Asset Management and Renewal Planning
Council has an adopted Asset Management Strategy, and associated Asset Management Plans, which are focussed on providing Best Value Asset Management. This process involves extensive asset management planning and analysis to ensure that the best possible asset management decisions are being made, given the resourcing constraints Council faces.
Within Council’s Asset Management Strategy, Asset Management Framework and Asset Management Plans, ‘backlog’ is not calculated, neither is it referred to, and nor is it used as an active management tool. Acknowledgement of the validity of this approach is further echoed by John Comrie:
Rather than focus on the content of Special Schedule 7 [this is now known as Special Schedule 2, and is the schedule which includes the backlog calculation] in evaluating asset management needs a better approach would be to consider the content of councils’ asset management plans (I acknowledge that the reliability of data there in is often still being refined).
Such plans should be of course consistent with a council’s long-term financial plan and therefore the achievement of their financial targets (thus forcing councils to wrestle with and make judgement calls in preparation of these documents regarding trade-off choices between service level preferences and service recipients’ willingness and capacity to pay).
Source: ‘Review of TCorp’s Report ‘Financial Sustainability of the NSW Local Government Sector’ October 2014.’
No options are provided at this time as the report is for noting and a further workshop is to be provided.
There are no key environmental considerations covered in this report.
There are no key social considerations covered in this report.
A robust discussion around service levels and reporting is a good indicator of positive civic leadership.
Reported backlog figures are considered by many professionals in local government to be a largely irrelevant metric for determine the renewal needs for a council, due to the many issues which have been discussed in the body of this report.
The underlying condition assessment of assets is an important input when setting the Operational Plan, however the calculation of backlog has little relevance or value to this activity. It is purely a reporting metric for OLG’s purposes and does not direct the make-up of Council’s renewal plan in the Operational Plan or Delivery Program.
In the case of backlog assets identified by Council’s current Policy approach (OLG Method 1), which highlights high risk items that require inclusion in future works programs, the backlog figure provides a reminder of the assets which are at the highest priority for funding in future works programs, judged purely on a risk basis i.e. currently the Jetty Structure, a number of playground soft fall areas, and pools.
See Delivery Program/Operational Plan Implications, above.
In preparing this report, reference was made to the consultation process that was undertaken in 2013/14. To ensure that Council maintains a good understanding of community expectations, there are plans to go back to the community to test service expectations and willingness-to-pay, after Phase 1 of the Service Delivery Review Preparedness project is completed in September 2020. Additionally, internal stakeholders within council, including asset owners, and those involved in the asset renewal process were consulted in preparation of this report.
Council’s Asset Management Policy is the key document which outlines which calculation methodology for backlog is used for reporting in Special Schedule 2 of the Annual Accounts.
Planning for effective asset renewals and thereby maintaining asset service delivery is a critical function of Council that relies on a sophisticated number of processes, metrics and decision frameworks. Renewal Backlog does not drive or inform the Asset Renewal processes in Council, and as such, changing the methodology by which it is calculated will neither improve nor degrade service levels received by the community, or the actual condition of assets.
Author: Section Leader Asset Project Delivery
Attachments: ATT1 SI19/17 CONFIDENTIAL Tender Assessment RFQ-LGP-1183-QI
That Council considers the tenders received for Contract RFQ-LGP-1183-QI Lining of Defective Sewer Pipes 2019/2020, and adopts the recommendation in the Confidential Attachment.
The works associated with this contract are part of Council’s annual Sewer Rehabilitation Program.
The works include but are not limited to:
- Cleaning of approximately 5km of gravity sewer mains in 119 gravity sewer pipeline segments
- Closed-circuit television (CCTV) of gravity sewer mains
- Lining the 5km of damaged sewer pipelines
- Supplying electronic data reports and indexed CCTV video files and photos.
Invitations for Quotations’ were called for a Lump Sum contract via Vendor Panel 164997. Tenders closed at 2:00pm on Thursday 6 November with a 90-day valid period ending 4 February 2020.
Submissions were received from three organisations, which were:
1. Insituform Pty Ltd
2. Interflow Pty Ltd
3. Abergeldie Watertech Pty Ltd
The tenders will be evaluated on the following criteria:
- Time required for completion
- WH & S and Quality Management, Sustainable Resources and Environmental management
In accordance with the adopted Delivery Program this project is to be completed and capitalised before the end of the 2019/2020 financial year.
All companies have adequate Work Health and Safety systems and Quality Management plans.
1. That the lining of defective sewer pipes 2019-2020 delivery program will not be completed within the existing delivery timeframe unless the Recommendation is adopted.
2. The risk of potential overflows from pipes which have been identified for repairs.
This lining project will significantly improve sewer mains that are currently in a critical condition and will minimise sewer overflows and disruptions from pipe blockages and failures. This project is targeting a high risk, old age category.
1. Adopt the recommendation. This would allow the project to progress with an expert contractor, within Council’s adopted timeline and budget allocation.
2. Reject the recommendation and delay conducting urgent repairs to pipelines until after the next Council meeting in February 2020. This approach would delay the project delivery and add significant cost to the pipeline.
3. Leave the sewer network conditions and GIS data as they are currently and react to failures as we find them.
Proven construction methods will ensure that no adverse environmental effects occur during the project.
- Reduced occurrences of sewer overflows to the environment due to pipe failure
- Reduced occurrences of sewer overflows to the environment due to infiltration
- Reduced interruptions to sewer services
- Reduced power consumption and mechanical costs due to reduced pumping of stormwater
- Reduced treatment costs due to less stormwater
- Reduces treated effluent released to the environment
The project will ensure that sewer pipeline integrity is maintained. These gravity sewer pipes are from the oldest catchments. Lining will help to reduce the chance of gravity sewer overflows, and the disruption to the community as well as the clean-up needed thereafter.
The project will reduce the occurrences of sewer service interruptions for residents.
The project listed for consideration will address matters outlined in the following strategy of the Community Strategic Plan:
D.2 We have effective use of public resources
The lining of gravity sewer pipelines will ensure continuity of supply and reduce future maintenance and environment issues.
All Tender prices received are within Council’s allocated budget for this Project.
The project requires lining to be conducted in live sewer. Generally, the work is non-intrusive, except for extreme cases where pipes have collapsed and require point repairs. If required temporary shut downs a pump station can be coordinated with the assistance of council staff.
Quality and safety risks will be controlled during construction by Council’s Project Management team supervising and administering the contract.
The contractor will conduct letter drops prior to work and will submit week by week location updates. The Project Manager will then liaise with Council staff during the delivery phase of the project. Works are due for completion in April 2020.
Tendering procedures were carried out in accordance with Council's policy. Council's Tender Evaluation System will be applied during the tender review process.
All submitted tenders scheduled start dates of early January 2020.
The Project has significant risk exposure if not completed within the existing financial year.
Attachments: ATT1 SI19/18 CONFIDENTIAL Tender Assessment RFT-1171-TO
That Council considers tenders received for the Woolgoolga Beach Reserve Amenities Roof Structure and Other Associated Works, Contract No. RFT-1171-TO, and adopts the recommendation as detailed in the confidential attachment to this Report.
The project is for new roof structure over the public amenities and a “Changing Places” facilities at Woolgoolga Reserve, Beach St Woolgoolga NSW, including the following:
- The roof structure has been custom designed by G2 Architects to reflect the values of the Woolgoolga Beach Reserve Master Plan.
- The supply and installation of the amenities will be by others and was not a part of this RFT.
- 2x 4-cubicle anti-vandal Restrooms
- 1 x Changing Places anti-vandal Restroom
Invitations for Tenders were called for a Lump Sum contract. Tenders closed at 10:00am on Wednesday 16 October 2019.
A tender submission was received from one organisation:
1. FM Glenn Constructions Pty Ltd
An open Tender RFT-1171-TO was conducted with only one (1) response – FM Glenn Constructions Pty Ltd.
- Relevant Experience and reference
- WH&S and Quality Management Sustainable Resources And Environmental management
Given the grant delivery timeframes for completion of the works, the options are necessarily limited to:
1. Adopt the recommendation. This would allow the project to progress with an expert contractor and meet the milestones set out in the grant funding agreement.
The proposed works will be subject to an appropriate level of assessment for environmental and cultural heritage matters under Part 5, Environmental Planning and Assessment Act 1979 and Regulation 2000 (Section 228).
Council has committed funds to the project in the FY19-20 budget with the Community and Council staff eagerly anticipating the completion in March 2020.
The project benefits a wide cross section of the community including active and passive recreation participants, children and youth, people with disabilities and/or mobility issues, community groups and charities, sporting groups, commercial operators and events, local businesses as well as local, domestic and international visitors to the location.
The project is in accordance with the following strategy in the community strategic plan:
A.1 A Vibrant and Inclusive Place
As construction specialists, FM Glenn have the expertise and experience to construct the custom roof that address all design and regulatory requirements, perform at a high standard and deliver value in efficient cost of design, construction, and operating cost and longevity.
The recommended Tender price is within the allocated FY19/20 allocated budget.
1. The installation of the amenities is targeted for completion early March 2020. Rain may potentially cause delays; this will be managed by a commitment to inform all stakeholders of extensions to the project completion date.
2. Quality and safety risks will be controlled during construction by Council’s Project Management team supervising and administering the contract.
3. The preferred tenderer has very good references and experience in similar works.
The design is in accordance with the Woolgoolga Beach Reserve Master Plan.
The project requires minimal public consultation. Information signage will be installed advising of works, contact details and duration of closure.
Appropriate internal consultation has taken place with relevant stakeholders and has been previously mentioned in issues.
The calling, receiving and reviewing of tenders/quotes was carried out in accordance with Part 7 Tendering of the Local Government (General) Regulations 2005.
Quotation procedures were also carried out in accordance with Council's Procurement Policy.
Council's Tender Evaluation System has been applied during the quotation review process.
Recommendation actions can be commenced immediately, with an expected completion date of March 2020.
PMHC 895401
New construction of 375mm Sewer Rising Main in the Ocean Drive / Koala St area of Port Macquarie including underbores
Expected contract value exceeds $250,000
Small design component, Coastal Works will submit conforming and 2 non-conforming tenders
SR1864344771
Wollomombi Falls Carpark and Viewing Platform Upgrade, Oxley Wild Rivers National Park
Demolition of the existing structure, fabrication and install new viewing platform, improvements to access roads and carpaking
PMHC 896583
Design, supply and construct 65 metres of path and boardwalk at Oxley Beach, Port Macquarie
Only submitting a tender for option 2 of the package
Design and construct of a replacement bridge over Coopernook Creek just past the CHCC boundary with Bellingen Shire Council
This project will be a section 55 of the Local Government Act engagement directly with BSC
NARRAB 896448
Panel contract arrangement to supply and construct replacement water and sewer mains within the Narrabri Shire Council area
The other four tenders above will take priority to the submission of this tender as they are within Coastal Works preferred strike range
The timeliness of the Coastal Works commercial bid process will be detrimentally impacted by the extensive period between Council’s last meeting on 12 December 2019 and the next scheduled meeting in February 2020.
Significant commercial revenue opportunities will be detrimentally impacted due to the inability of Coastal Works to submit commercial bids in response to opportunities tendered by external clients as a result of Council’s meeting calendar during the period December 2019 to February 2020.