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EAST KEMPSEY CEMETERY

PLAN of MANAGEMENT

Prepared by

DEX Consulting Pty Ltd

for

Kempsey Shire Council

East Kempsey Cemetery Plan of Management

November 2009 Prepared by DEX Consulting Pty Ltd Page 2

Contents 1. Introduction .......................................................................................................... 5

1.1 Location and Current Heritage Listing ........................................................... 5

1.2 Current Legislative Control and Management ............................................... 6

2 Historical Summary .............................................................................................. 7

2.1 Brief History ................................................................................................... 7

2.2 Significant Burials .......................................................................................... 8

3 Site Analysis ...................................................................................................... 11

3.1 Landform & Soil ........................................................................................... 11

3.2 Access ........................................................................................................ 12

3.3 Drainage ..................................................................................................... 12

3.4 Visual .......................................................................................................... 13

3.5 Historic Investigations ................................................................................. 14

3.6 Buildings ..................................................................................................... 14

3.7 Recording .................................................................................................... 16

4 Statement of Cultural Significance ..................................................................... 17

4.1 Cultural Heritage ......................................................................................... 17

4.2 Aboriginal Heritage ...................................................................................... 17

5 Management Issues Addressed ........................................................................ 19

5.1 Cemetery layout .......................................................................................... 19

5.2 Identification of burial areas throughout the cemetery ................................. 19

5.3 Plants and landscaping suitable for use in the cemetery ............................ 20

5.4 Artificial Lighting .......................................................................................... 20

5.5 Access to water supply for visitors .............................................................. 21

5.6 Traffic Management .................................................................................... 21



5.6.1 Internal Traffic Movement ..................................................................... 21

5.6.2 Parking Areas ....................................................................................... 21

5.6.3 External Traffic Movement .................................................................... 22

5.6.4 Traffic Flow ........................................................................................... 22

5.7 Pedestrian access ....................................................................................... 23

5.8 Seating and Public Shelter .......................................................................... 23

5.9 Signage and Information ............................................................................. 24

5.10 Row Indicators and Bollards .................................................................... 25

5.11 Boundary and Internal Fencing ................................................................ 25

5.12 Stormwater Control .................................................................................. 26

5.13 Subsoil Drainage and Seepage Control ................................................... 26

5.14 Flooding Impacts...................................................................................... 27

5.15 Interface of new and old areas ................................................................. 27

5.16 Australian War Graves & Ex-service Graves ........................................... 28

5.17 Natural areas, Flora & Fauna ................................................................... 29

5.18 Asset Management .................................................................................. 30

5.19 Bush Fire Management Plan ................................................................... 30

5.20 Vegetation Management and Weed Control ............................................ 31

5.21 Review of Local Environmental Constraints and Issues .......................... 31

5.21.1 Noise ...................................................................................................... 31

5.21.2 Dust and Erosion .................................................................................... 31

5.21.3 Leachate ................................................................................................. 32

5.22 Expiration of Reservations ....................................................................... 32

5.23 Interments for the next 20 yrs .................................................................. 33

5.24 Ashes Storage & Disposal ....................................................................... 34

5.25 Grave Restoration & Conservation .......................................................... 35

5.26 Public Convenience ................................................................................. 35

5.27 Procedure Manual – O H & S .................................................................. 35

5.28 New Works Depot and Storage Area ....................................................... 36



5.29 New Children’s Cemetery ........................................................................ 36

6 Management Plan .............................................................................................. 38

6.1 Recommendations ...................................................................................... 38

6.3 Action Plan .................................................................................................. 41

APPENDICES



1. Introduction

The Mid-North Coast Regional Strategy (Regional Strategy DoP 2006-37) identifies

significant growth in population, particularly of aged persons:-

“Currently there are 333,400 people living on the Mid North Coast. Population

projections have identified that there will be an additional 91 000 people living in the

Region by 2031, or a total population of 424,400.

While the population is increasing, a considerable challenge also arises from the

ageing of the population. Over the next 25 years, the median age is expected to

increase from 41 years in 2001 to 55 years in 2031, and the population aged 65

years and over will more than double. At the same time the proportion of children

under 15 years will decline from 21 percent to 14 percent of the regional population.”

A recent report to Kempsey Shire Council stated that the current interment rate is

approximately 145 per annum. It is suggested that this rate of burial is high due to

the current lack of local cremation services.

On February 2008, a report to Council on the Yarravel Bushland Cemetery indicated

that more thorough studies of the Shire’s capacity for burials still needs to be

undertaken and Plans of Management should be developed for each facility.

This Plan of Management has been prepared by Dex Consulting Pty Ltd for the East

Kempsey Cemetery to address that need.

1.1 Location and Current Heritage Listing

East Kempsey Cemetery is located in Naiooka Street, East Kempsey and is

generally bounded by Hill Street, Craig Street, East Street and Bloomfield Street.

This land was gazetted for a proposed cemetery on 2 April 1895 and dedicated as a

cemetery on 8 June 1895. The cemetery originally comprised Lots 1 to 8 within the

“Township of West Kempsey” with an area of about 95 acres (38.3 Ha). As part of

the original plan, the cemetery was divided into denominations (Roman Catholic,



Church of England, etc) and Trustees for each section were appointed to manage

those sections. This subdivision has been generally followed until fairly recent years.

The current titles are:-

Lot 7020, DP 1060505 and

Lots 7024, 7025 & 7026 of DP 1060502.

The land is effectively Crown Land dedicated for the particular use as a cemetery

under the care and control of Kempsey Shire Council.

The site is currently listed on Kempsey Shire Council’s Heritage Register and is a

very significant resource of local historical and cultural knowledge.

1.2 Current Legislative Control and Management

East Kempsey Cemetery is controlled and maintained under the Local Government

(Control of Cemeteries) Amendment Act 1966, the Local Government Act, 1993 and

all other applicable Acts and Regulations.

In particular the daily business of a cemetery is regulated under the Public Health

Act 1991 and Public Health (Disposal of Bodies) Regulation 2002 including:

• Handling of bodies

• Burials and register of burials

• Exhumations – applications and approvals

• Inspection of facilities

The cemetery must also comply with the Occupational Health and Safety Act 2000

and the Occupational Health and Safety Regulation 2001 in terms of workplace and

work practices standards for employees and others at the workplace.

PUBLIC HEALTH (DISPOSAL OF BODIES) REGULATION 2002 - REG 20



20 Burial of bodies

Unless otherwise approved by the Director-General in a particular case, a person who buries a body contained in a coffin must place the coffin so that its upper surface is not less than 900 millimetres below the natural surface level of the soil where it is buried.

Manual excavation by grave diggers in older section of cemetery

2 Historical Summary

2.1 Brief History

The Kempsey area was progressively settled from March 1835 onwards, when

Enoch Rudder arrived on the Macleay River after travelling overland from Port

Macquarie, via Maria River.

“The town was given its name in 1836 by Enoch Rudder who had migrated to the

Colony of New South Wales in 1834. Like a number of newly arrived entrepreneurs,

he hunted cedar for export. In 1835, his explorations led him to the Macleay River,

which Europeans had discovered and named only a few years earlier. Its cedar



stands were largely untouched and in them he saw his future as a resident cedar

merchant with ready access to the ‘red gold’ and to the world’s markets via the quick

flowing Macleay, its union with the sea at Trial Bay – and waiting timber schooners.

Rudder also planned a private town of which he would be squire and in 1835, after

much wrangling, achieved his objective by acquiring Samuel Onions’ grant of 812

acres (328 ha). He called his land ‘Kempsey’ after a town in the Severn Valley

(Worcestershire). In 1836, he subdivided it and thus was born a prosperous and

diversely – worked rural area.”

The history of the Cemetery is listed in chronological order below

Year Event

1837 First known burial conducted

1892 Survey undertaken & plan prepared of layout

2 April 1895 Proposed Cemetery gazetted

8 June 1895 Cemetery Dedicated

1895 to 1896 Various Trustees appointed for sectional control.

9 December 1966 Cemetery was transferred to Councils Control

1997 Ashes Garden was constructed

1998 Shelter shed was restored

2005 Scanning for Aboriginal burial sites

2006 Indigenous memorial erected

2007 Scanning for Aboriginal burial sites

2009 Memorial for unmarked graves dedicated

2.2 Significant Burials

There are many significant burials located in East Kempsey Cemetery such as:

Steuart McIntyre: Shire President Died – 9/2/2006

Arthur Fyson Slack: Shire President Died – 20/6/2002

Margaret Gertrude Howlett: Sister of Australian Prime Minister John Curtin, Died - 18/12/1974

Henry Daniel Woodward: Shire President Died – 9/7/1968

Leslie Everton Dunford: Original ANZAC at Gallipoli Died – 18/1/1976

Norman Christopher Long: Former Mayor of Kempsey Died – 9/6/1967

Richard Archibald: WW2 Aboriginal soldier Died – 29/12/1974



(First Aboriginal member of the Kempsey RSL sub-branch)

Percival Richard Richie: Boxing Champion, one of the Sands Bros.

Died – 3/7/1974

Enoch William Rudder: Founder of Kempsey Died – 3/12/1888

Edwin Haberfield: Shorty Ranger Died – 22/6/2007

John Vaughan McMaugh: Convict Died – 20/10/1863

Robert Gavin Melville: Former Mayor Died – 18/5/1982

The oldest remaining headstone appears to be Henry Rudder, son of E W & Emma

Rudder born on 4 October 1827 in Birmingham and died 22 April 1837 see image 1.

The cemetery is listed on Council’s Heritage Register.

Rudder family graves



Parish Map of Cemetery Gazettal



3 Site Analysis

3.1 Landform & Soil

Landform Plan of Cemetery

The site is within an undulating landscape of broad ridges and wide gullies, sloping

generally towards the east. The northern section has a wide depression centrally

located with side slopes of about 5% which contains drainage lines. The southern

section has a ridge grading at about 3% to the south and east. The triangular

Unsectarian section (Lot 7024) slopes at 5% to the south-east. Lot 7025, below that

is low, containing a creek and is flood prone.

The cemetery is generally well drained due to natural slopes, has a north-easterly

aspect and the landform is suitable for cemetery use. Some upgrade of underground

drainage infrastructure is required due to run-off from surrounding developed areas.

It is understood that the water table is not usually encountered when digging graves

and is believed to be at least 3m below the surface level. It may be shallower in

lower areas.

Soil types are medium to hard clays with a thin topsoil layer. In the higher areas of

the Anglican and Catholic sections gravel and shale can be encountered which

makes hand excavation among existing graves difficult. Originally manual excavation

only was used, now where possible machine excavation is employed. Deep stiff soils



or clays are favoured for cemeteries as they allow straight sided excavations without

affecting other adjacent graves or collapsing. Individual graves are then separated

by earth walls and able to decomposed gradually.

3.2 Access

Access to the cemetery is currently via Naiooka Street, East Street or Bloomfield

Street. There is vehicular access into and around the cemetery via three narrow

lanes and the surrounding streets. At the end of these lanes limited turning bays

have been provided. There is very limited parking within the cemetery although

ample informal parking in the surrounding streets.

Also within the cemetery there are at least 2 corridors for access by excavation

machinery, funeral corteges and the public. These corridors have been left free of

graves for this purpose.

It is suggested that improved access to and circulation through the cemetery is

required to assist disabled and aged visitors and better manage traffic during and

after funerals. It would not be desirable for heavy traffic volumes or speeding to be

possible, however access controlled by suitable construction should be examined.

Parking areas should also be provided on-site, particularly as the cemetery

development tends to move away from the informal areas in Naiooka Street. These

may be provided with a new internal road link.

3.3 Drainage

Existing drainage through the cemetery is in the northern section, with pipes running

from Naiooka Street to the east and from Hill Street to the south. These drains

appears to be inadequate, with very limited capacity in Naiooka Street, pits with

grates only, a large catchment of 3.6ha including the Pacific Highway and many

dwellings.

In Hill Street stormwater flows to a small pipe culvert, without headwalls under the

road, which discharges among old graves to flow overland towards the creek, (image

2).



There are open drains at the pipe outlets that are hazardous, (image 1). These

drains need to be fenced off for public safety or extended further underground.

Drainage Outlet (image 1) Drainage north of Hill St (image 2)

3.4 Visual

The cemetery area is well maintained, tidy and generally attractive, however lack of

a development or landscape plan in the past is evident. A lot of the older rows are

not parallel and at different spacings and alignments. Most of the original burials

were along Naiooka Street in the Methodist, Anglican and Catholic sections. Graves

in this era were usually fully covered with concrete, marble or memorials.

Approximately half of the cemetery consists of fully covered graves and the other

half are of the more modern lawn style.

The two brick columbarium walls are not attractive, with different brick colours, a

blunt appearance, and are unaligned to the adjacent roadway. With the increase in

cremation over interment it is suggested that further space for ashes burial be

provided in landscaped ashes gardens or more attractive columbarium walls,

perhaps on the edges of the cemetery. This may reduce the demand for burial sites.

The East Kempsey Cemetery is an important cultural and social area, well

patronized by visitors and mourners and should present an attractive appearance. In

recent years the cemetery appearance has been greatly improved by judicious

management, and re-organisation. Development of improved access, parking,

shelters and landscaping would enhance recent improvements.



In future it may be possible to use “parolees” and persons on Community Service

orders to assist with gardening and cemetery maintenance.

3.5 Historic Investigations

There have been several times that Council has engaged the services of Richard

Yelf. He has performed radar scans of the cemetery to find unmarked graves. He

has also performed two searches for Aboriginal burials. These were conducted in

2005 and 2007. During the 2005 search dozens of unmarked graves were

discovered. To acknowledge the presence of the graves a memorial boulder and

plaque was placed near the site. It was unveiled on 19 December 2006.

Following on from the success of the installation of the memorial at the first scanned

site in 2005, further steps have been taken to continue scanning the East Kempsey

Cemetery. In 2009 a joint partnership between Kempsey Shire Council and H & H

Accredited Training Australasia Inc was established resulting in further

memorialisation work has being undertaken, with the works completed in July 2009.

“Barrunbatayi - Dreamtime Cemetery” was developed where many Aboriginal graves

were located. The redeveloped area with excellent landscaping, signage, paths and

gardens was officially opened by The Hon Paul Lynch, MP, NSW Minister for

Aboriginal Affairs on July 2009.

3.6 Buildings

There are only two buildings located in the cemetery. One is a shelter shed and the

other a unisex/disabled toilet. The toilet is locked at night and unlocked and cleaned

every morning.



Shelter shed

Unisex toilet

It would be desirable to provide more shelter where cemetery services could be

carried out in very inclement weather and visitors may rest in the shade. A shelter

could be provided within the redeveloped area of the present Crown Road (East

Street).



3.7 Recording

The Council currently holds records for over 7300 people who have been interred or

cremated and their ashes stored. Unfortunately, there are many unknown /

unmarked graves. Records are available from 1837, mostly in old books and can be

searched by name or plot location, and there is an ongoing project of attaching

obituaries and photographs of monuments to each entry.

Council has recently pegged burial sites which are known, reserved or of unknown

status to try to rationalise grave use and occupation. It is suggested more use could

be made of computer software to list, record and identify grave locations and status.

Burial records could be made available on Council’s web page to allow research of

family records. Grave locations might then be given in a GIS, or row/space format.

Extract from register of burial allotments



4 Statement of Cultural Significance

4.1 Cultural Heritage

The East Kempsey Cemetery is an important historical, cultural and social area, well

patronized by visitors and mourners and should present an attractive appearance. In

recent years the cemetery appearance has been greatly improved by judicious

management, and re-organisation. Development of improved access, parking,

shelters and landscaping would enhance recent improvements.

Signage and access could be improved to allow visitors to more easily locate graves.

In the course of preparing this Plan, DEX contacted the Macleay Historical Society

seeking any input. The society indicated that they were interested in being involved

in the future. We also wrote to the Kempsey-Macleay RSL Sub-Branch who also

indicated interest in upgrading the memorial crosses for servicemen.

4.2 Aboriginal Heritage

In addition to extensive Aboriginal graves recently located and marked, there is a

significant ceremonial site. This is located on the east of the East St crown road

reserve, among a thick clump of trees. It is understood that this “bora-bora” ground

or ring was used by Aborigines on ceremonial occasions and is of cultural

significance. It is suggested that this area be preserved and signposted in

accordance with the wishes of local Aboriginal organisations.

KLALC have been involved in the restoration, marking and dedication of graves in

the “Reconciliation” & “Dreamtime” cemeteries and should be invited to participate in

any proposals for this area.



Reconciliation memorial stone

Barrunbatayi - Dreamtime



5 Management Issues Addressed

5.1 Cemetery layout

The existing layout of the East Kempsey Cemetery has evolved from the historic

reservation of land since 1837, the division into various religious denominations and

subsequent management decisions. The topography, flooding and aspect of the land

have also affected cemetery development.

The intention now is to in-fill burials in the older sections where possible, to identify

and reuse old grave reservations and consolidate and fill the older sections. Newer

burials tend to be the lawn-type which are less expensive, easier to maintain and to

plan. It is suggested that development of new burial areas progress in a modular

style to a set pattern of grave size and spacings.

Use of the currently undeveloped “Unsectarian area” (Lot 7024) should provide 800

burial plots and 30 car parking spaces in accordance with this concept plan.

It would appear essential for future cemetery development to have the present East

Street road reservation closed between Hill Street and Bloomfield Street and also the

western end of Craig Street. This area could be developed for a further 800 graves,

including a “children’s cemetery”, shelter area, access road and car parking. Use of

this closed road would also improve landscaping opportunities, pedestrian pathways

and access to a works depot and storage area. It is strongly recommended that

Council pursue closure of these Crown Roads and conversion for cemetery use.

5.2 Identification of burial areas throughout the cemetery

There are signs throughout the cemetery indicating the sections, such as Catholic,

Anglican, and General Lawn etc, that can assist people when attempting to locate a

grave. Due to the old numbering system whereby each denomination had its own

numbering system (Catholic A17, Anglican A17, Methodist A17, etc). If the

denominations are not known it is difficult to locate graves.

Consideration should be given to a more logical system for numbering and recording

future graves. It is recommended that improved signage be provided to identify the



sections, with grave rows and numbers shown. An on-site directory to graves might

also be provided.

To assist identification of graves and movement around the cemetery it is suggested

to name to the internal roads, such as “Paperbark Lane”, “Tallowwood Avenue” and

“Ironbark Way”. Any other suitable names could be used if preferred.

5.3 Plants and landscaping suitable for use in the cemetery

There are currently a range of different plants within and around the cemetery from

isolated pencil pines to hibiscus, bottle brush, jacarandas and eucalypts. There are

also some large camphor laurel trees on the edges of the cemetery. It is suggested

that in future a list of plants, which are attractive, low-maintenance and suitable be

developed for use, with designated planting areas.

Camphor Laurel trees ((Cinnamomum camphora) can be poisonous, and invasive

and should be removed. Where possible other existing native trees can be left and

graves placed around them. Small colourful foliage or flowering shrubs can be

planted throughout the cemetery in designated areas to ease maintenance. The

Appendix includes a list of suitable plant species.

5.4 Artificial Lighting

There are some street lights in Naiooka Street which spill into the cemetery. There

is currently no lighting within the cemetery itself. It would be possible to extend

electricity supply from the sewer pumping station to an area light near the toilet

building or to provide a solar powered light in other isolated areas. It is doubtful that

lighting is needed and most cemeteries are not lit unless for security reasons.

The provision and cost of permanent lights operating every night would be

expensive. There may be nuisance caused to surrounding residents from constant

lighting. A possible option could be an area light near the toilet building which is

sensor triggered for a short period.



5.5 Access to water supply for visitors

At present there are water taps throughout the cemetery for visitors to use for plant

watering or drinking. Troughs could be placed with the taps to catch rain water and

any excess water from the taps, but they would need to be cleaned.

Water tanks could collect water from the toilet building roof and possibly the shelter

shed for visitor or garden use.

5.6 Traffic Management

5.6.1 Internal Traffic Movement

There is currently vehicular access into and around the cemetery via three

narrow lanes and the surrounding streets. It is suggested that improved access

to and circulation through the cemetery is required. It would not be desirable for

heavy traffic volumes or speeding to be possible, however access controlled by

suitable construction and traffic restrictions should be examined. Existing internal

roads should have adequate pavement strength to carry the occasional heavy

vehicle of funeral directors and Council’s excavation machinery.

A concept for a road linking Bloomfield Street to the internal access road is

shown in our plans, which could improve the traffic situation. The existing central

lane (Tallowwood Avenue) could be converted to one-way in (west to east) with

the new link road two-way with turning areas. Traffic should be encouraged to

exit via Bloomfield Street where access onto the Highway is possible.

5.6.2 Parking Areas

Additional parking areas should be provided on-site, particularly as the cemetery

development tends to move away from the informal areas in Naiooka Street.

These may be provided with the new internal road link from Bloomfield Street.

The existing informal parking in the upper section of Naiooka Street (between

Gordon Rees St & Bloomfield St) should be constructed with kerb and gutter to

rationalize and maximize the parking in this section. The section north of Gordon

Rees St might be left as it is with a pleasant “avenue” appearance to protect the

large jacaranda trees there.



5.6.3 External Traffic Movement

Access to the cemetery from the Pacific Highway, is currently via Naiooka Street,

East Street, Gordon Rees Street or Bloomfield Street, however egress back to

the Highway is only possible at Bloomfield Street and Naiooka Street. The

intersection of Bloomfield Street with the Pacific Highway should be altered to a

“seagull type” to assist traffic from the cemetery to re-enter the Highway. Current

lengthy delays for traffic trying to turn right into the Highway following large

funerals, urges motorists to turn left, then make a u-turn on the Highway or into

one of the side streets.

Approaches should be made to the Roads & Traffic Authority to upgrade this

intersection.

It is suggested that the present informal roundabout in Naiooka Street at Gordon

Rees Street, around the large tree, should be formalised and reconstructed

geometrically to reduce any traffic hazard and assist movement.

5.6.4 Traffic Flow

At times of a large funeral, traffic flow can be congested and confusing. At

present there is limited parking within the cemetery and poor pedestrian and

disabled access. Vehicles attending the cemetery park in surrounding streets,

block driveways and cause congestion. Vehicles leaving the cemetery have only

one entry point back onto the Pacific Highway, which causes queues and delays.

A new internal link road which will permit through traffic and additional parking

on-site is suggested.

The intersection of Bloomfield Street with the Pacific Highway should be altered

to a “seagull type” to assist traffic from the cemetery to re-enter the Highway.


intersection.

It is suggested that the present informal roundabout in Naiooka Street at Gordon

Rees Street, around the large tree, should be formalised and reconstructed

geometrically to reduce any traffic hazard and assist movement.



These measures should relieve existing local traffic problems.

It is suggested there are few environmental constraints to the continued

operation of the East Kempsey Cemetery.

5.7 Pedestrian access

Pedestrian access is currently via the bitumen roads that go through the different

sections of the cemetery. Pedestrian access is being improved by placing a

concrete walkway in some areas of the cemetery. This will make it easier for visitors

especially those that are confined to a wheelchair, aged or frail. It will also make a

huge difference for all visitors when there has been a lot of rain.

It is recommended that pedestrian pathways be extended in conjunction with any

new construction and where possible, within the present cemetery. Paths should

preferably be 1.5m wide, constructed of concrete with a buffer or barricades to

vehicle areas.

5.8 Seating and Public Shelter

There are several seats scattered throughout the cemetery of standard design.

There is a large shelter shed located in the Anglican section of the cemetery,

although nothing in the newer areas.

Persons attending the cemetery may need shelter for several reasons:-

in very hot or very cold weather for temporary respite,

in very wet weather for temporary respite,

as a place for quiet contemplation,

to occupy children during a graveside service,

as a place for a private funeral or memorial service.

It is recommended that a shelter be constructed as part of the new development (on

the proposed closed road). A possible site and structure is included in the plans.



Protection from the weather could be also achieved by planting some trees as wind

breaks or installing small (bus) shelters around some of the existing seats.

Example of shelter for new section of the cemetery

5.9 Signage and Information

There is presently a map showing the various sections at the entrance to the

cemetery off Naiooka Street. There are signs notifying visitors of the different

sections of the cemetery. These signs are the height of a street sign and very easy

to see. These signs might be augmented with row numbers and more details.

It is also possible to carry out a search for an allotment/deceased for a fee of $14

payable at Council’s Customer First Centre. Additional signage and row marking

would assist these searchers.

It could be useful to have a small booth where the public could research through

printed records or electronically through a data base. Security and prevention of

vandalism would need to be considered.



5.10 Row Indicators and Bollards

Some row indicators are missing or very hard to see. A suggestion is to have row

indicators like the photo below that are easy to see and placed the beginning and

end of every row. Another option is bronze row and grave markers.

Exiting row marker Proposed row marker

Row marking is gradually being improved under the current management and is

important for grave location and site management.

5.11 Boundary and Internal Fencing

There is presently only a fence on the eastern side boundary which is used for stock

management on private property. All other boundaries are unfenced. It would be

difficult and costly to fence all the 500m road frontages and security could not be

assured as other gateways and openings could remain. Full fencing would require

gates with opening and closing by Council staff daily and on weekends and public

holidays. This would be costly and cumbersome.

Lack of fencing may encourage vandalism, hooligans and undesirable behavior and

provide a de-facto public reserve with unrestricted access. However it is considered

the level of vandalism or undesirable behavior does not warrant full fencing at this

time. Consideration could be given to erection of a suitable fence, say post & rail, to

delineate the boundaries and to accompany warning or regulatory signs.



A more cost effective deterrent could be positive promotion of the cemetery as an

important cultural and social place, highlighting events such as the official

Barrunbatayi opening.

5.12 Stormwater Control

Existing drainage through the cemetery is in the northern section, with pipes running

from Naiooka Street to the east and from Hill Street to the south. These drains

appears to be inadequate, with very limited capacity in Naiooka Street, pits with

grates only (easily blocked by leaves), a large catchment of 3.6ha including the

Pacific Highway and many dwellings. The main pipe is 600mm in diameter and

extends 115m from Naiooka Street to near the Sewer Pump Station without an

intervening pit for cleaning or to collect surface water. During storms surface water

has been observed ponding in Naiooka St and pouring down the internal road

(Ironbark Lane) and overland to the open drain and creek beyond.

In Hill Street stormwater flows to a small pipe culvert, without headwalls under the

road, which discharges among old graves to flow overland towards the creek. This

pipe also surcharges, flows over the road and scours the outlet and embankment.

Excessive overland flow causes erosion and subsidence to graves, road edges and

accumulates silt and debris in grassed areas. Water is also able to enter new graves

and affect the stability of adjoining graves and monuments.

Both these drainage systems need to be analyzed and possibly amplified to reduce

overland flows. Options may be duplication, enlargement of existing pipes, retention

tanks or pits, improved inlet pits or diversion banks.

There are open drains at the pipe outlets that are hazardous. These drains need to

be fenced off for public safety or extended further underground.

5.13 Subsoil Drainage and Seepage Control

Adequate subsoil drainage and surface drainage is essential in a cemetery to

prevent undermining of headstones, grave surrounds, monuments and grave filling.

It is also required to drain water away from grave areas to permit safe excavation



especially when digging amongst old existing graves or at “extra depth”. The

presence of excessive, uncontrolled moisture in and around graves can weaken the

soil structure and permit dangerous collapse of the excavation. This may be a

breach of O H & S safe working requirements.

Excessive moisture can also cause leaching of decomposition fluids into new graves

endangering the health of grave diggers.

It is recommended that in conjunction with upgrading of underground stormwater

drainage, additional subsoil drainage be installed.

5.14 Flooding Impacts

The predicted peak flood level (1 in 100 year) is about 6.5m Australian Height Datum

(AHD) in the Rudders Lagoon – East Kempsey basin. From survey and

topographical maps the flood line does not affect most of the cemetery area.

The only area affected by flooding is Lot 7025 (the triangular portion below Craig

Street) and the crown road in that vicinity.

It is proposed to establish a works depot and storage area for sand, rock, fill, etc on

the crown road however that should not be affected by flooding.

5.15 Interface of new and old areas

The cemetery area is well maintained, tidy and generally attractive, however lack of

a development plan in the past is evident. Most of the original burials were along

Naiooka Street in the Methodist, Anglican and Catholic sections. Graves in this era

were usually fully covered with concrete, marble or memorials. Approximately half of

the cemetery is of fully covered graves and half are of the more modern lawn style.

In future it is presumed that in-fill burials in the older sections will take place where

old or lapsed reservations are used, or where spaces exist. These graves may be a

fully covered or reduced cover type as appropriate.

Newer burials will take a “lawn” style, which are more uniform and easier to maintain.



Any interface between new and older areas should leave a buffer of say 4m for

access to the older areas for machinery.

5.16 Australian War Graves & Ex-service Graves

The Commonwealth War Graves Commission only commemorates those who have

died during the designated war years in service or of causes attributable to service.

The war years are considered to be

World War I 4 August 1914 to 31 August 1921

World War II 3 September 1939 to 31 December 1947

According to the Commonwealth War Graves Commission the only recorded burial is

Richard Henry Lalor died 10/4/1921. There are however other graves located in the

cemetery which are in the same style as a War Grave eg. Richard Archibald, WW2

Aboriginal soldier died – 29/12/1974. James Albert Lawson died 26/4/1926.

There are many graves bearing the insignia of the Returned and Services League

(RSL).

Erected in Naiooka Street is a wooden cross, on which every year on Anzac Day

floral wreaths are placed. The RSL have indicated they would like this memorial

cross replaced with a suitable stone and plaque.



Grave stone of Richard Henry Lalor

Grave stone of James Albert Lawson

5.17 Natural areas, Flora & Fauna

The cemetery contains no significant areas of natural vegetation apart from the edge

of the East Street road reserve, Lots 7024 & 7025 near the creek. Prior to clearing

these areas they should be assessed for significance and any hollow-bearing trees

retained if possible.



The cemetery is visited by a few native animals. Kangaroos, wallabies and possums

have been sighted along with many birds, such as a large owl, tawny frogmouth and

powerful owl. Other more common birds such as Kookaburras and Magpies also

visit.

It is considered by DEX from previous ecological studies nearby that several

threatened species such as small bats may visit the cemetery, but it is unlikely

proposed improvements would affect their habitats.

Tawny Frogmouth Powerful Owl

5.18 Asset Management

All the infrastructure items within the cemetery, such as seats, taps, paths, buildings,

etc should be identified and logged to enable a record of condition and any

necessary maintenance to be prepared. From the asset register it would be possible

to plan and budget for annual replacement, repair or maintenance more easily.

5.19 Bush Fire Management Plan

Bushfire threat to the cemetery is low, but could come from the grasslands to the

east or from the un-cleared areas around the creek. It is suggested that a buffer of

about 10m from unmanaged vegetation be kept around combustible structures. It



would be advisable, if possible, for Council to enter into an agreement with the owner

of the land to the east (Lot 1, DP 626833) to allow Council to enter and maintain an

asset protection strip of say 10m width along the dividing fence.

5.20 Vegetation Management and Weed Control

Weeds are presently controlled by spraying with a herbicide such as Round-up.

Graves and surrounds are also whipper snipped when the lawn is mowed. Weed

control is carried out throughout the year especially between September and

November for the growing season.

It would be desirable to move towards full “lawn style” graves so that machine

mowing over graves would control weeds, with a minimum of manual weeding or

spraying. Concrete or gravel edging might also be added around existing graves or

paths to prevent weed growth.

5.21 Review of Local Environmental Constraints and Issues

5.21.1 Noise

The cemetery operation appears to be well accepted by the surrounding

residents with very few complaints. Due to the development of the cemetery

away from adjacent residents, and the low levels of noise generated, this is

not considered to be an issue. Staff should recognise the possible impacts of

early morning noise on residents.

5.21.2 Dust and Erosion

Most of the cemetery is well grassed or paved and there is very little dust

generated. Exposed areas are usually quickly covered after a burial. Dust is

not considered a constraint

Erosion of surface soil can occur from storms and surface run-off and

standard silt-fences or other devices should be erected around spoil mounds

and graves if wet weather threatens. Provision of erosion control should be a

part of the standard grave digging procedure.



It is recommended that a works depot/storage area be established where

surplus soil, sand, etc can be stored with permanent erosion fences provided.

5.21.3 Leachate

It is possible that contaminated leachate containing decomposing body fluids

and pathogens could pass into underlying groundwater or flow into

stormwater systems and the natural creek (See Dent & Knight – “Cemeteries:

A special kind of landfill” in the Appendix). It would be desirable to collect or

divert rainwater away from grave areas and to ensure that new graves are

adequately tamped and sealed with compacted and mounded soil which can

shed rainwater for some time.

Subsoil drains should be installed at regular intervals to collect stormwater

seepage and prevent accumulation within grave lines.

It is unlikely given the topography of the cemetery, the lengthy time period of

burials and the scattered nature of current burials that a health hazard could

arise near existing dwellings. The possibility of leachate flow towards the

creek and swamplands should be recognized and observed.

There are many technical articles and instructions on cemetery leachate

management which could be studied and considered as part of standard

practice and operating procedures.

5.22 Expiration of Reservations

Owners details of grave reservations made prior to 1967 were not complete from

church groups and trustees when handed over to Council in 1967. There are a

significant number in the “old” monumental sections of the cemetery. Council is

presently trying to identify the owners of reservations and has advertised in the local

press for that purpose.

If reservations are not resolved it should be possible to re-use those burial plots after

sixty (60) years.



5.23 Interments for the next 20 yrs

The Mid-North Coast Regional Strategy (Regional Strategy DoP 2006-37) identifies

significant growth in population, particularly of aged persons:-

“Currently there are 333,400 people living on the Mid North Coast. Population

projections have identified that there will be an additional 91 000 people living in the

Region by 2031, or a total population of 424 400.

While the population is increasing, a considerable challenge also arises from the

ageing of the population. Over the next 25 years, the median age is expected to

increase from 41 years in 2001 to 55 years in 2031, and the population aged 65

years and over will more than double. At the same time the proportion of children

under 15 years will decline from 21 percent to 14 percent of the regional population.”

On 12th February 2008, a further report to Council on the Yarravel Bushland

Cemetery indicated that more thorough studies of the Shire’s capacity for burials still

needs to be undertaken and Plans of Management should be developed for each

facility. It was also indicated that: “any private investment in cemetery facilities (or

crematoria) would have a significant impact on Council’s proposals and therefore

needs careful consideration”.

“In Australia today the numbers of people choosing to be cremated are steadily

increasing. Whilst there is some variance between states and territories, cremations

now outnumber burials. Cremation funerals are much higher in city areas where

crematory facilities are available. Rural and remote regions predominate in burials.

People have a choice of either burial or cremation. In certain cultures cremation is

not favoured (or may be prohibited within the relevant faith belief). In other cultures

the opposite may occur with cremation being the custom e.g. as in the Hindu

tradition.

It is a matter of personal choice. Future trends may see higher instances of

cremation due to increasing limits on cemetery space within or convenient to

population centres.”



Australian Funeral Directors Association.

A recent report to Kempsey Shire Council stated that the current interment rate is

approximately 145 per annum. It is suggested that this rate of burial is high due to the

lack of local cremation services, and does not include cremations of local persons

carried out in other centres for lack of a crematorium. Also burials may be occurring

in other nearby towns such as Macksville and Nambucca Heads which could be

cremated here. The total number of interments at Kempsey and other towns plus

cremations currently held at Port Macquarie or Coffs Harbour, which could be

diverted here, may be 250 p.a. Of these deceased, perhaps 50% could be cremated

rather than buried if that option was locally available. It is suggested the number of

cremations possible in a new facility could be about 100 per annum, or 2 per week,

increasing with population increase at 1% per annum to 125 in 2031.

Future crematoria could reduce the need for future burials, however there will always

be a need due to personal preference and cultural or religious beliefs.

It has proven extremely difficult to develop a totally new cemetery near Kempsey and

the approval of crematoriums requires land rezoning and approval. This intensifies

the need to make the most efficient use possible of the existing facilities such as at

East Kempsey.

The plans prepared allow about 1800 new burial sites, plus 200 ashes garden or wall

sites. This number when fully developed, along with the impact of any future private

crematoriums should provide sufficient disposal space for up to 20 years.

5.24 Ashes Storage & Disposal

With the increase in cremations and to encourage them as an alternative to burial, it

is suggested more space be provided for ashes disposal in either wall niches or

preferably in attractive landscaped gardens.

The existing ashes walls (columbarium) are unattractive blunt brick structures of

different brick colours and designs. They are poorly positioned and not aligned with

the adjacent road. It is suggested any new columbarium be placed on the edge of



the cemetery among landscaped surrounds or the existing ashes gardens be

extended and enhanced.

It is considered ashes gardens can be very pleasantly landscaped and be efficient.

Families could reserve an area for generations which can hold ashes marked by

small plaques. This is done at other cemeteries/ crematoria such as Innes Gardens

and Palmdale.

5.25 Grave Restoration & Conservation

Many graves, monuments, memorials and headstones are now very old, cracked,

sunken and faded, which would benefit from restoration/ conservation. It is

suggested Council pursue a grant to enable restoration of some of the oldest or most

significant graves and obtain specialist conservation advice which might be

implemented.

Some of the old graves which are sunken could be restored by interested volunteers

or community service persons.

Some guidelines on conservation are included in the Appendix.

5.26 Public Convenience

There is a unisex – disabled toilet within the cemetery, which appears adequate for

the present time.

Other comforts of shelter, seating, water supply, lighting, paths, etc have been

considered and addressed separately.

5.27 Procedure Manual – O H & S

Council has a comprehensive procedure manual for the administration of burials,

cemeteries, the work carried out in them and the erection of monuments and

memorials.



It is suggested this document be reviewed and updated in accordance with some of

the recommendations in this report and Plan and current requirements & regulations.

Emphasis on Occupational Health and Safety is paramount and Work Method

Statements for all activities within the cemetery should be developed, implemented

and reviewed.

PUBLIC HEALTH (DISPOSAL OF BODIES) REGULATION 2002 - REG 20

20 Burial of bodies

Unless otherwise approved by the Director-General in a particular case, a person who buries a body contained in a coffin must place the coffin so that its upper surface is not less than 900 millimetres below the natural surface level of the soil where it is buried.

5.28 New Works Depot and Storage Area

It is strongly recommended that Council establish an on-site cemetery depot where

materials such as soil, sand, rock, etc may be stored discretely with some minimum

security fencing and where excavation machinery and trucks can be parked during

funerals or during work breaks. The depot might also contain a secure container for

tools, cement, barricades, etc to assist on-site operations and a computer terminal

for office contact and register checking. This could then become a sub-depot for

cemetery employees near the main Kempsey cemetery.

An area has been flagged in our plans within the existing crown road south of Craig

Street which would appear suitable, once these roads are closed.

5.29 New Children’s Cemetery

An area has been set aside in the development plans for a “children’s cemetery”.

This would be a place for sensitive interment of the remains of very young children

who may be stillborn or die in infancy.

It is considered a separate area for such burials is required which could be

landscaped attractively and sensitively.



Typical ornament for children’s graves



6 Management Plan

6.1 Recommendations

Administration

Consider an on-site or web directory for grave search or information booth

Consider permitting mourners to purchase and nurture a selected memorial

plant in designated areas

Promote the cemetery as an important cultural and social place, with

occasional tours, highlighting positive events such as the Barrunbatayi

opening to reduce vandalism

Encourage input & interest from the Macleay Historical Society

Encourage input & interest from the Kempsey-Macleay RSL Sub-Branch to

upgrade the memorial crosses for servicemen

Encourage input & interest from the Kempsey Local Aboriginal Land Council

Initiate and pursue procedures to close East St between Hill St & Bloomfield

St and the unmade sections of Craig Street

Investigate status and maintenance of “War Graves”

Set up Asset Register for all infrastructure items

Upgrade/ review Operations Manual and Safe Working Methods

Attend industry meetings, conferences and seminars to remain aware of

trends, any legislation changes, regulations, operating options, etc.

Planning

Develop a list of plants for future use with designated planting areas

Provide further space for ashes burial & storage in attractive areas

If columbarium are preferred, design and site them aesthetically

Provide additional shelters and landscaping to enhance recent improvements

Burial records be made available on Council’s web page.

Signage be improved to allow visitors to more easily locate graves.

Improve access, parking, shelters and landscaping to enhance recent

improvements.



Undertake soil testing and groundwater analysis for design of new areas.

Develop plans for extension of cemetery into the closed road and

undeveloped areas.

Develop plans for a Children’s Cemetery

Develop plans for landscaped areas in association with new work.

Establish protocol between new and old burial areas.

Traffic

Improved access to and circulation through the cemetery is required.

Traffic should be encouraged to exit via Bloomfield Street where access onto

the Highway is possible.

Additional parking areas should be provided on-site

The existing informal parking in the upper section of Naiooka Street (between

Gordon Rees St & Bloomfield St) should be constructed with kerb and gutter.

The intersection of Bloomfield Street with the Pacific Highway should be

altered to a “seagull type”.


intersection.

The present informal roundabout in Naiooka Street at Gordon Rees Street be

formalised and reconstructed.

Operations

Improve signage to all cemetery areas.

Remove Camphor Laurel trees (Cinnamomum camphora).

Retain other existing native trees with graves placed around them.

Create a works depot/storage area on site.

Rename internal roads as “Paperbark Lane”, “Tallowwood Avenue” and

“Ironbark Way”.

Consider troughs and watering cans or plastic vases for public use at taps

and rainwater tanks. Possibility of sponsorship by local businesses.



Provide rainwater tanks which could collect water from the toilet building roof

and possibly the shelter shed for visitor or garden use.

Internal road access controlled by suitable construction and traffic restrictions

should be examined.

Existing internal roads should have adequate pavement strength to carry

occasional heavy vehicle

A road linking Bloomfield Street to the internal access road should be

considered as shown in our plans

The existing central lane (Tallowwood Avenue) could be converted to one-

way in (west to east) with the new link road two-way with turning areas.

That pedestrian pathways be extended in conjunction with any new

construction to be 1.5m wide.

That a shelter be constructed as part of the new development.

That existing signs be augmented with row numbers and more details.

Improve row & grave marking

Retain and/ or encourage habitat and shelter for native animals.

Create an APZ for bushfire protection around assets and examine possibility

with adjacent land.

Move towards “lawn style” graves to reduce weed maintenance

Consider concrete or gravel edging around existing graves or paths to prevent

weed growth.

Improve access to and circulation through the cemetery.

Existing internal roads should have adequate pavement strength to carry the

occasional heavy vehicles

Establish a “children’s cemetery”

Drainage

Existing drainage be examined and upgraded

Outlets of existing open drains should be fenced off or extended

Improve site drainage & inlets into existing pits and pipes

Consider diversion banks, additional pits & tanks.

Improve open drain outlets

Improve subsoil drainage and leachate control



6.2 Action Plan

A. Present Plan of Management to Council for adoption.

B. Advertise adoption of POM and future concept plans.

C. Circulate to Funeral Directors, Staff, Churches, Historical Society, KLALC,

RSL and any other interested groups.

D. Initiate & prioritise Administration actions:-

i. Road closures.

ii. Asset Register.

iii. Review Operations & Safe Working Manual.

iv. Encourage input from appropriate groups.

v. Promote historical & cultural significance of cemetery.

vi. Consider web directory for research & information.

vii. Investigate War Graves status.

viii. Attend industry conferences, seminars & meeting as available.

E. Initiate & prioritise Planning actions.

i. Improve signage, name internal roads, bollards, row markers, etc

ii. Cemetery extensions & infill options

iii. Improved access, parking, shelters, landscaping, etc

iv. Undertake soil testing & groundwater analysis.

v. Children’s cemetery

vi. Ashes gardens or walls

vii. Future planting

viii. Works Depot/ Storage area

F. Initiate & prioritise operational recommendations in accordance with current

budget provisions.

G. Prepare designs for physical works, roads, drainage, parking, etc.

H. Obtain estimates of cost for improvement works.

I. Prioritise improvement works in future budgets.

J. Undertake infrastructure improvements as funds permit.

K. Monitor legislation, regulations, O H & S, etc

L. Review Plan of Management and implementation in 5 years time.

Plan of management - kempsey.nsw.gov.au€¦ · machinery, funeral corteges and the public. These corridors have been left free of graves for this purpose. It is suggested that improved

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