Status and Recommendations Report Risk …...Risk management framework: set of elements of an organisation’s management system concerned with managing risk including strategic planning,

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Status and Recommendations Report

Risk Management for Sydney Coastal Councils

DRAFT

Prepared By

Sydney Coastal Councils Group Inc.

MAY 2005 KP002-051

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First Published in 2005 by the Sydney Coastal Councils Group Inc. Level 12, 456 Kent Street PO Box 1591 Sydney, NSW 2001 www.sydneycoastalcouncils.com.au © Sydney Coastal Councils Group Inc. This document is copyright. Reproduction and use of the material is this report is permissible only with written permission of the Sydney Coastal Councils Group Inc. Disclaimer While all care has been taken to report accurately, the Sydney Coastal Councils Group do not accept responsibility for any information, whether correct or incorrect, supplied by others for this document, or for any loss or harm arising from the use or misuse of this document. Acknowledgements The Sydney Coastal Councils Group would like to thank the SCCG Coastal Risk Management Forum Working Group and DPINR representatives for providing peer review of draft material and advice on SCCG Coastal Risk Management Survey. Working Group representatives include: Daylon Cameron (Warringah Council), Niki Carey (Waverley Council), Micaela Hopkins (Rockdale Council), Paul Hardie (Pittwater), Tim MacDonald (Manly), Gwyn Cleeves (Sutherland), DIPNR representatives Prof. Bruce Thom, Doug Lord, David Hanslow and Mark Moratti.

The SCCG would also like to sincerely thank Dr Kate Panayotou for providing valuable volunteer support to assist with designing and collating the survey information from member councils and for being the principle author of this report.

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Forward......................................................................................................................................... 4 1. Introduction........................................................................................................................... 5

1.1 Key Terms ....................................................................................................................... 5 1.2 Objectives of the Risk Management project ................................................................... 6

2. Background to Coastal Risk Management ........................................................................ 6 2.1 Introduction...................................................................................................................... 6 2.2 Results of 2004 Pilot Study ............................................................................................. 6

2.2.1 Hazard issues identified........................................................................................... 6 2.2.2 Hazard definition studies ............................................................................................. 7 2.2.3 Strategic risk assessment ........................................................................................ 7 2.2.4 Management tools.................................................................................................... 7

2.3 Initial Working Group Issues of Concern......................................................................... 7 2.4 Background to coastal management in the NSW coastal zone...................................... 8

3. Responses from member Council Survey and Consultation .......................................... 9 3.1 Survey and Consultation Process ................................................................................... 9 3.2 Sydney Coastal Councils’ Risk Management responsibilities and training .................... 9 3.3 Defining coastal risk management by SCCG member Councils .................................. 10 3.4 Communicating Risks for Coastal and Estuarine areas ............................................... 15

4. Future of Risk Management in SCCG Councils .............................................................. 17 4.1 Recommendations and Ways Forward ......................................................................... 19

4.4.1 Recommendations ................................................................................................. 19 4.4.2 Recommendations for the Sydney Coastal Councils Group ................................. 20 4.4.3 Suggested Best Practice for Risk Management .................................................... 20

5. Conclusion .......................................................................................................................... 21 Appendix 1: Coastal Risk Management Survey ..................................................................... 22 Appendix 2: Proposed outline for the Coastal and Estuarine Risk Management Forum .. 31

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Forward Risk management is a systematic process in which policies, procedures and practices are devised and utilised to identify, analyse, assess, treat and monitor all forms of risk. The Sydney Coastal Councils Group (SCCG) aims to promote co-ordination between member councils on environmental and natural resource management issues relating to the sustainable management of the coastal urban environment. The SCCG consists of 15 Councils adjacent to Sydney marine and estuarine environments and associated waterways (Botany Bay, Hornsby, Leichhardt, Manly, Mosman, North Sydney, Pittwater, Randwick, Rockdale, Sutherland, City of Sydney, Warringah, Waverley, Willoughby and Woollahra). The Group represents over 1.3 million Sydneysiders. This area encompasses the waterways of Broken Bay; Pittwater; Port Jackson, the lower Lane Cove River, Middle and North Harbour; Botany Bay, the Lower Georges and Cooks River; and Port Hacking. It has become apparent to the SCCG that risk management is of prime importance to member Councils. In response to this merging issue the SCCG formed a Coastal Risk Management Working Group to identify key issues of concern, gaps in the risk management process and recommended ways forward for managing risks. A pilot survey was conducted in 2004. The survey identified key issues that are further addressed in this report and are also to be addressed in the Coastal Risk Management Forum scheduled for late 2005. Coastal risk management should be aimed at providing a structured approach to identifying and analysing potential risk in the coastal zone and devising and implementing responses appropriate to the impact/s. It is important to identify current practices and identify how they fit into guidelines. Coastal risk management encompasses the steps of identifying the risks, risk assessment, decision-making and reduction of risks using scientific knowledge and stakeholder consultation into a single management procedure making a more complete, transparent decision-making process e.g. via a coastal management plan. This report provides the necessary information to provide an overview of the current status and activities of coastal risk management in member Councils including recommendations for future priorities. The report will also be used directly to scope the planned SCCG Coastal Risk Management Forum to develop action and policy strategies to improve on current practices. On behalf of the SCCG we welcome and encourage feedback on this draft report to include:

• Addressing any identified gaps and providing further information • Commenting on the existing and suggesting additional recommendations • Provide direct comment on the proposed content and structure of the SCCG Coastal Risk

Management forum This report provides a unique a preliminary benchmark of the current practice in coastal risk management for SCCG member Councils. We hope that this resource will prove useful to improve on current practices

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1. Introduction Risk management is a tool used to make decisions about the probability of an event and its resultant consequences. It aims to provide a structured way of identifying and analysing potential risks, and devising and implementing appropriate responses while providing an opportunity to enhance current practice and support. It is defined by Australian Standard 4360 (2004) as “the culture, processes and structures that are directed towards realising potential opportunities whilst managing adverse effects”. It involves a multifaceted process that is best carried out in a multidisciplinary team ensuring a systematic application to the tasks of identifying, analysing, assessing, treating and monitoring all forms of risk. Management of coastal and estuarine risk is subjective as there are different reasons and values that influence the cost benefit ratio of protecting the coastal zone such as:

• the loss of property, • the value of a beach, • the cost of protective works whether it be construction or renourishment, or • the value of the coastal zone by user groups e.g. surfers, land owner and tourism industry.

Risk management for the Sydney Coastal Councils Group member Councils is of prime importance as the management of risks has a wide distribution. Focus is required for the integration of not only natural processes such as coastal erosion, cliff stability and flooding but now must also incorporate issues such as public safety. This has also been recognised in the revised Coastal Zone Management Manual that is currently being redeveloped which promotes a wider adoption of risk management approaches and includes a tools chapter on risk management based on the Australian Standard AS/NZS 4360:2004. The purpose of this document is to provide a status and recommendations report on risk management practice for Councils in Sydney coastal areas including beaches, estuaries, lakes and nearshore marine waters (suggested 3 nautical miles offshore). This in turn will inform Councils on regional issues, help focus the planing SCCG Coastal Risk Management Forum and identify a list of recommendations to address the issues. Each Councils’ needs differ greatly and it is important to establish the level that each Council is at in the risk management process, identifying which Councils need assistance and which Councils have a well established risk management process, which will fundamentally assist in addressing the issues of concern.

1.1 Key Terms The following terms are often used to describe the risk management process. Definitions have been sourced from AS/NZS 4360:2004 Risk Management. Hazard: A source of potential harm Risk: the likelihood or probability that a particular set of circumstances will occur resulting in a particular consequence/s that may flow from it Risk identification: the process of determining what, where, when, why and how something could happen Risk criteria: terms of reference by which the significance of risk is assessed Risk Analysis: systematic process to understand the nature of and to deduce the level of risk. This provides the basis for risk evaluation and decisions about risk treatment Risk evaluation: process of comparing the level of risk against risk criteria Risk assessment: the overall process of risk identification, risk analysis and risk evaluation Risk management: the culture, processes and structures that are directed towards realising potential opportunities whilst managing adverse effects

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Risk management process: the systematic application of management policies, procedures and practices to the tasks of communicating, establishing the context, identifying, analysing, evaluating, treating, monitoring and reviewing risk Risk management framework: set of elements of an organisation’s management system concerned with managing risk including strategic planning, decision making and other strategies, processes and practices for dealing with risk management.

1.2 Objectives of the Risk Management project The objectives of identifying risk management in all coastal areas are to establish:

• what is risk management for each relevant coastal, estuary and/or waterway zone • what are the common risks faced by the member Councils • what are the common practices of risk management • what are the gaps in coastal risk management practice

The purpose of this report is to provide Councils with:

• details of member council feedback for the issue of Coastal Risk Management facing Sydney’s coastal Councils

• collate a status and recommendations report as part of the process to identify the issues facing SCCG Councils by recognising:

o common coastal risk issues and management activities identified for member Councils o recommendations for managing risk in the coastal zone

2. Background to Coastal Risk Management

2.1 Introduction Sydney Coastal Councils Group (SCCG) member Councils have identified a need to assess current Local Government practices in relation to coastal risk management, risk assessments and associated management responses. Identifying these current practices benefit the decision-making process, which involves identifying, assessing and monitoring of coastal risks by evaluating the environmental, economic, social and political aspect of each risk in the coastal zone. This more defined decision-making process will assist organisations by encouraging trans-disciplinary participation, facilitating improved communication between the relevant parties and bridging the gaps in our understanding of the risk management processes.

2.2 Results of 2004 Pilot Study The pilot survey undertaken in 2004 as part of the Sydney Coastal Councils Group partnership with University of New South Wales, critically reviewed a broad scope of international and local literature of risk management techniques and processes. A baseline survey of six of the member Councils of the Sydney Coastal Councils Group provided preliminary results of the existing Local government practices in coastal risk management focussing on identifying hazard issues, hazard definition studies, strategic risk assessment and risk management tools. The following is a summary of the results from the pilot study surveys from the six participating member Councils and has been the basis of these additional investigations.

2.2.1 Hazard issues identified The hazards of most concern to member Councils surveyed are geophysical processes including erosion and cliff collapse, infrastructure failure and accidents in public space, while environmental degradation including loss of biodiversity and acid sulphate soils are a moderate concern. Climate change/sea level rise, natural disasters and poor water quality had various rankings of importance for each member Council surveyed.

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If an accident was to occur, the issues of most concern to member Councils are risk to the public, loss of reputation, increased insurance premiums and being sued. The issues of least concern are loss of revenue and not being sure of how to communicate or respond to stakeholders.

2.2.2 Hazard definition studies Councils conduct formal hazard definition studies on an as needed basis. They include but are not limited to geotechnical investigation, water quality monitoring, ecological and sedimentological studies in accordance with the Coastline and Estuarine Management Manuals, Coastal Management Plans and Community Lands Plan of Management. Councils also assess environmental risks other than coastal hazards and they include risks from hazards such as bushfire, flood, landslip and acid sulphate soils.

2.2.3 Strategic risk assessment Strategic coastal risk assessments are dealt with on an as needed basis. Formal risk assessments have been undertaken by half of the Councils surveyed. This process, based on the Coastline Management Manual, often involves investigation, hazard identification, consequence of risk and risk matrix to determine risk priority and actions to minimise or prevent risks. Not all these steps are implemented by member Councils. It was observed that most of the member Councils surveyed do record concerns in a risk register however this is not necessarily in a uniform format or within one Council department. Most Councils identified that they formally notify the community or relevent property owners if there is a risk from a coastal hazard.

2.2.4 Management tools A range of tools were identified in the six surveys that are used to assess and manage risks by member Councils. These include the Coastal Hazard Policy, Coastline Mangement Manual and State/National guideline documents such as Australian Standards, legislation, best practice manuals, Workcover, OHS Acts and guidelines developed by Council risk insurers. Other independent resources include risk management/legal consultants, Statewide Mutual and Statecover and comparisons or benchmarking with other Councils and government agencies for relevant simialr issues.

2.3 Initial Working Group Issues of Concern A range of broad key issues addressing coastal risk management have been identified for consideration. These include:

• Defining coastal risk management for each Council • Identifying the common aspects for all member Councils • Comparing current risk management practices of member Councils • Defining responsibilities of State and Local government • The need for a holistic approach to manage coastal risk • Communication with the community • Liabilities in regards to public access • Emergency management response/s • Risk management advice • Anthropogenic risk management

These key issues are the driver for this Status and Recommendation Risk Management Report and the impending Forum. They have also assisted to scope the survey, consultation and identify gaps in our understanding of the coastal risk management process.

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2.4 Background to coastal management in the NSW coastal zone Coastline Management Manual (1992) addresses the risks of coastal processes. However, coastal risk management is moving away from just natural processes and now includes man-made risks based on coastal usage. The question that coastal Councils must ask themselves is what is coastal risk management? Theoretically it is the potential risk from natural processes however it does encompass a broader context including the increasing demand and use of the coastal zone. The complexity of risk management of the coastal zone has resulted in a need to identify and assess the risks faced by all members of the Sydney Coastal Councils Group. The Coastline Management Manual states that “the coastline of NSW is under constant attack from the natural forces of the wind and waves. Consequently, much development is under threat from the hazards of erosion and recession of the coastline, from inundation by the ocean, storm surges and the "greenhouse" effect. In some places, beaches are receding at a significant rate, with implications both for existing development and for the siting of future development. Recession of the coastline may also result in the loss, not only of beaches but of public reserves, facilities and infrastructure along with a uniquely Australian landscape.

Construction of protective works is not necessarily the solution to coastal hazards, as in many cases these can cause loss of the beach amenity, and can have adverse impacts on other parts of the coastline. The answer, where existing development is at risk, lies in an understanding of the natural and anthropogenic forces at work and the application of management measures appropriate to the situation. Elsewhere, pre-planning should aim at ensuring that any development will be compatible with the degree of hazard.

Risk management is defined as the culture, processes and structures that are directed towards realising potential opportunities whilst managing adverse effects (AS/NZS 4360, 2004). It is a methodology that comprises formal steps to assess the risk and assist in the decision-making procedure to reduce the risk. The primary objective of the Coastline Hazard Policy is to reduce the impact of coastal hazards on individual owners and occupiers, and to reduce private and public losses resulting from natural coastal forces. Consequently, it is the policy of the NSW Government that:

• the impact of coastal forces on existing developed areas shall be reduced by works and measures and by the purchase of property on a voluntary basis, where appropriate;

• the potential for coastal damage in respect of any proposed coastline development shall be contained by the application of effective planning and development controls by local Councils; and

• a merit approach to all development and building decisions which takes account of social, economic and ecological as well as oceanic process considerations, shall be followed by local Councils and developers (NSW Coastline Management Manual, 1990).

The revised Coastal Zone Management Manual is being drafted in two volumes: • Volume One deals with the process of developing a coastal zone management plan and its inter

relationships to other plans and policies. It updates and refines the management process outlined in both the Coastline Management Manual and the Estuary Management Manual. It is intended for wide distribution and focuses on the integration of the management process with the Coastal policy, the role of the various government instrumentalities and relevant legislative requirements, procedures etc. This volume whilst promoting wider adoption of risk management approaches does not contain much specific information on risk management.

• Volume Two is the more substantial of the two volumes. It contains information on relevant policies and legislation, coastal and estuarine processes, management tools, as well as guidelines on the management of various coastal issues. Of relevance to risk management the manual includes a tools chapter on risk management which is based on the Australian Standard AS/NZS 4360:2004. Volume two also includes chapters on the management of coastal erosion, cliff stability, public safety and flooding which follow a risk management approach.

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3. Responses from member Council Survey and Consultation

3.1 Survey and Consultation Process As part of ensuring that all necessary issues are addressed at the Coastal Risk Management Forum each SCCG member Council was asked to provide input on the issue of coastal risk management. The SCCG has resolved to convene a Coastal Risk Management Forum to explore common risk issues and management activities for member Councils. A Coastal Risk Management Working Group made up of delegates from SCCG member Councils and NSW Department of Infrastructure Planning and Natural Resources (DIPNR) has been established to further scope and implement the Forum. Surveys were sent out to all member Councils in the hope to seek answers about the context of risk management in the coastal zone by distinguishing the risk assessment process from the risk management process. A copy of the survey can be found in Appendix 1. To achieve a greater understanding of coastal risk management, face to face consulations were also conducted with a number of member Councils. The purpose of the survey and consultations was to provide a detailed benchmark of the status of each Council’s coastal risk management progresses and an assessment of the present needs of risk management in Sydney’s coastal and estuarine areas. Surveys were sent out to the fifteen member Councils of which 11 Councils responded fully or in part. Four of those Councils and one other Council participated in a consultation process discussing questions outlined in the survey as well as focussing on detail of individual Council activities and concerns for risk management in their relevant coastal and estuarine areas. The following Sections outline the responses from each Council detailing the common attributes that member Councils face in defining, responding to and managing coastal and estuarine risks. Section 5 draws on the responses from the survey and consultation to suggest ways forward in managing coastal and estuarine risks.

3.2 Sydney Coastal Councils’ Risk Management responsibilities and training Risk management responsibilities and training is varied in each Council. Responses ranged from dealing with risk management at a corporate level as well as being dealt with on a project level. It was stated by most member Councils that elements of risk management are the responsibility of a number of sections within each Council. Responsibilities for risk management in the coastal and estuarine zones of the SCCG member Councils included:

• identifying and implementing strategies for hazards on public lands, • notification of hazards to private land holders and the general public, • provide long term management strategies, • develop and implement coastline, estuary and/or catchment management plans, • prepare coastline hazard definition studies for relevant areas which identify potential hazards

resulting from: o beach erosion, o shoreline recession, o sand drift, o coastal inundation, o stormwater erosion, o slope and cliff instability o climate change, o mitigate management options such as sand renourishment or construction of seawalls,

and o monitor, assess and determine responses to hazardous coastal process events.

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Training Most project officers did not have formal training in risk management but had attended a range of conferences or workshops that addressed elements of risk management such as the Natural Hazard Symposium and the Emergency Management Conference (SES). Of those project officers that do have formal training it included formal education at an undergraduate or postgraduate level, short course training in OH&S and risk management (in general and for specific components such as water quality).

3.3 Defining coastal risk management by SCCG member Councils Definitions Councils tend to use the Australian Standards definition of risk management: AS/NZS 4360:2004 which defines risk management as the culture, processes and structures that are directed towards realizing potential opportunities whilst managing adverse effects. It was stated by a few Councils that this definition is used in all programs so that potential adverse effects are eliminated or kept to a minimum. Other Councils have specified their definition of risk for the coastal zone. One example is:

• Risk management involves undertaking detailed assessments to identify and clearly define all

potential risk posed to life and/or property. Strategies are then developed using scientifically based information and appropriate remediation undertaken to mitigate or eliminate those risks. This definition encompasses both natural processes and human influenced risks.

In response to identifying and assessing risks, all Councils recognise risks on an individual basis, either as plans are developed or on an as needed basis, with focus then being on the level of risk to life and/or property (both public and private) together with environmental and aesthetic considerations. Identification of Risks As part of identifying the stage of risk management that each Council is presently at, a series of questions were asked to detail how Councils incorporate and manage the coastal risks at a Local government level, how Councils review, monitor and/or audit identified risks and what resources are used to help manage risks. Coastal risk management encompasses the steps of identifying the risks, risk assessment, decision-making and reduction of risks using scientific knowledge and stakeholder consultation into a single management procedure making a more complete, transparent decision-making process. The answers from this section of the survey provide a background to what member Councils are doing to mitigate and manage risks and a benchmark for ways forward in the risk management process: Currently risk is not looked at as an all encompassing program but often as an individual concern. The following is a list of responses from each member Council of how risks are identified. The range of responses is long but not limited to the following:

• Councils rely on Council officer reports and resident reports • Annual risk assessment of relevant assets (e.g. coastal) • On-site (immediate) and short-term (forecasts) assessment of weather conditions • Real time monitoring (Coastal imaging) of beach profiles and conditions • Real time monitoring of estuary and lagoon water levels; and • Periodic review of relevant management plans and Plans of Management that set objectives for

the relevant foreshore areas.

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Techniques to manage risk The following points are the diverse range of techniques adopted by individual Councils to manage risks:

• In a few Councils all risks are managed together • Risk is managed in a non-structured, ad hoc approach • Risks are integrated into DCP’s, LEP’s and management plans • For those hazards identified as being on private property, information is recorded on each

property’s 149 Certificate and a letter forwarded to the owner notifying them of this and the details of the particular hazard affecting their property

• Risk management is applied specifically to contracts and councils works, where relevant, covering both environmental risks and human influenced risks

• Coastal hazards are identified and addressed geographically. The risk assessment process adopted is used to determine impacts on people, property and the environment

• Management of risk is an integrated process, but risks associated with natural hazards are generally managed according to each type of hazard i.e. the risk management process may be the same for all hazards, however the risk treatment measures may be specific and different for each hazard

• Through Community education Programs • Signage • Site inspections • Community Plans of Management that look at risk treatment measures and managing access to

infrastructure and recreational facilities • Define corporate risk management priorities and funding for future projects and programs through

Council Management Plans • State of the Environment report that identifies and quantifies major environmental and ecological

risks on basis of anthropogenic impacts and a common set of biophysical indicators • In house monitoring of identified risks • Audits by specialist consultants and councils risk insurer brokers • Reviews including benchmarking against performance of peer council and similar management

agencies as well as Councils performance as determined by evaluation of longer term accident and incident histories

Case Study Example: Pittwater 21 LEP Incorporates risk mgt policies for natural hazards including coastal line and estuarine hazards Case Study Example: Botany DCPs for Building design and construction, # 32 Landscape, # 33 Industrial development, # 34 Contaminated land, # 40 Wetlands and Land under LEP 4 Coastal risks management encompasses the steps of identifying the risks, risk assessment, decision-making and reduction of risks using scientific knowledge and stakeholder consultation into a single management procedure making a more complete, transparent decision making process. The following are responses from 10 of the 15 Councils addressing overall progress in the risk management process, priority of risk groups, identification of risks common to SCCG member Councils and use of resources relevant to managing risks.

Progress in the risk management process

Concern Yes No Do you have a coastal management plan or have plans to do one or do a review?

6

4

Do you analyse and evaluate risk management?

7

3

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Categories of potential risks

Risk Group Order of concern for risks - with 1 the highest concern A. Risks to people (injury or death) 1 B. Risks to property (structural & other damage) 2 C. Risks to the environment 3 D. Risk to society Equal 4 E. Risk to councils & agencies Equal 4

Does Council set criteria against which risks will be assessed?

5

5

Do you determine the management options of a potential risk? How?

7

3

Do you communicate and consult with internal and external stakeholders?

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1

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List of potential risks for SCCG member Councils (List derived from revised Coastal Zone Management Manual, DIPNR)

Risk Number of Councils

which have risk in their

Council area

(Out of 10)

Percentage (%) of Councils that have dealt with the risks they have identified

Yes No

A. Risks to people

To beach users from rips, currents, waves, sand bars, pollution, marine stingers, sharks

7

100

0

To walkers and fishers from rockfalls, landslides and waves

7

86

14

To sunbakers and children from dune slumping following beach erosion

2

100

0

To boaters particularly at entrance bars

1

100

0

To waterway users from surf craft, boats and jet skis

8

75

25

From coastal flooding, inundation and tsunami

7

71

29

Associated with public use of or access to coastal facilities, such as rock pools, training walls and walkways

8

100

0

B. Risks to property

From coastal erosion and recession

6

100

0

From slope instability (landslide)

5

100

0

From climate change

7

43

57

14

From coastal flooding, inundation and tsunami

5

80

20

C. Risks to the environment

Degradation of ecosystems

9

100

0

Loss of habitat or species

9

89

11

Loss of natural heritage

8

75

25

D. Risk to society

Loss of social or economic opportunity

5

60

40

Loss of amenity (beaches, views, etc.)

8

75

25

Loss of access

5

100

0

Loss of cultural heritage

5

100

0

E. Risk to councils & agencies

Public liability associated with use of public land and facilities

9

78

22

Lack of adequate resourcing

7

71

29

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A number of resources are available to assist with certain aspects of addressing risk management. To assist in understanding where the gaps are in the management process the survey aimed to identify which of the following resources in the table below are utilised by SCCG member Councils.

3.4 Communicating Risks for Coastal and Estuarine areas Communicating risks of coastal hazards to the public has been identified as an important issue of concern. There is a need to consider and identify effective communication mechanisms to inform community of risk and clarify specific hazards and land use limitations. Some examples given in the preliminary survey of how member Councils communicate risks to the community are through:

• Signage, education programs, • formal letters advising of possible hazards to private property and • having management plans on public exhibition.

It is important to identify the most effective means in communicating possible hazards and resultant risks to the local community and have future plans to communicate these concerns to both private property owners and the public.

Resource

Number of Councils that use this Resource

(Out of 10) Use in-house resources and staff

10

Hire consultants 8 NSW Local Government Act 1993

9

NSW Coastline Hazards Policy (within the Coastline Management Manual 1988)

4

NSW Coastal Policy 1997 3 NSW Coastal Protection Act 1979 (2002 Amendments)

5

NSW Environmental Planning and Assessment Act 1979

9

Estuary Management Manual 1992

7

Floodplain Management Manual 2001

5

ANZECC Water Quality guidelines 2000

8

Australian Standards 4360 Risk Management Standard 1999

4

Public access guidelines and standards

7

Provisions for walkways guidelines and standards

5

Standards and guidelines for sign design and instillation

8

Other 1

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Current effective communication mechanisms Councils communicate risks depending on an individual program and potential hazards identified. Mechanisms to inform the community of risks as identified in the survey include:

• Warning signs for swimmers and recreational uses • Signage highlighting risk • Restricting access to areas of high risk • Information on coastline hazards provided to residents via precinct meetings and newsletters • Formal letters notifying private property owners of specific hazards and inclusion of information

on 149 Certificates • Copies of relevant documents e.g. Coastal Hazard Definition Studies and Coastline Management

Plans are available in Council Libraries, online and MEC • Local paper • Community newsletter • State of the Environment Report • Annual Management Plan • Information nights and workshops • Mayoral column • Information accessible on the internet

Challenges faced in communicating risk to the public

Challenges that arise in communicating risks to the community encompass:

• Justifying the 149 Certificate notifications once a hazard has been remediated • A general lack of interest or apathy from the community • Appropriate signage • Increasing awareness, example through education programs and local newspapers • Language Barriers – some Councils have very multicultural areas and/or outside visitors • Ignorance • People do not want to see the big picture • Communicating risk management given the high degree of uncertainty • Eliciting community understanding of the need for such long planning horizons • Explaining the real and hidden costs to the community of not managing risk • Keeping hazards and associated risk topical and relevant in the often long periods between major

hazard events Below is a list of future plans member Councils have to communicate risks to the community:

• Signage including specific policies dealing with the management of risks associated with natural

hazards • Use of planning documents • Media release on specific risks • Education programs: hazard and risk information provided through Council programs • Public consultation: community consultation and exhibition including stakeholder involvement and

input • Development of controls and conditions specifically designed to alert the community of their

obligations to undertake appropriate risk reduction when developing • Hazard identification and risk management process implemented by Council in response to

appropriate needs • Urban flood awareness and readiness program

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Case Study Example: Pittwater Pittwater Natural Hazards community awareness program incorporates Year 9 geography natural hazards education modules, summaries hazard reduction and risk management works of other agencies Will develop website and produce brochures and information packages for distribution to the community Case Study Example: DISPLAN Action Plan Manly, Warringah and Pittwater local emergency management committee implements Displan Action Plan and specific hazards sub-plans. District emergency management officer coordinates the resources of Local Government, required through the local emergency management officers. This is all in accordance with provisions and hierarchies outlined in the State Emergency and Rescue Management Act 1989 and State Emergency Service Act 1989 Case Study Example: Provisions Council’s insurance company has requested to assess risks Hazard warning: have all major foreseeable hazards adequately conveyed to the community at risk, early communication of potential exposures, actions plans for identified risks and full records of Council’s risk management processes

4. Future of Risk Management in SCCG Councils The aim of the survey and consultation process was to identify a definition of risk management for the coastal, estuary and waterway areas of the Sydney Councils, establish the common risks faced and identify the common practices of risk management by SCCG member Councils and finally identify the gaps and ways forward in the risk management process. The following sections bring the results of the surveys and consultations together in the hope to identify how councils plan to manage risk in the future and what guidance and resources they need to fulfil these goals. The other aim of this project was to identify gaps in the process of identifying, assessing and managing risks. Examples of this process are provided below with recommendations for future risk management in Sydney’s coastal councils. As part of the survey, Councils were asked what plans they had in place over the next 12 months for the management of coastal and estuarine risk within their Local Council area. Responses are shown in the Table below.

Individual Council plans for coastal risk management over the next 12 months Council Response

Botany Bay Nil Manly With coastal hazards now identified across North (Sydney) Harbour Council is conducting further

geotechnical assessment recommended through the Coastal Hazard Definition Studies. Once completed Council will be able to implement remediation strategies prioritised on the level of risk posed. Manly Ocean Beach Coastal Management Study and CMP & Emergency Plan, manly Lagoon Evacuation Manual will also be prepared over the next 12 months.

Mosman No specific plans, incorporate information from SCCG projects Pittwater Complete review of Coastal Management Plan, Complete estuary management plan, Complete

Pittwater beaches plan of management, Complete Geotechnical hazard mapping for LGA, Complete landslide likelihood for Pittwater Study with AGS, Complete flood management plans for major floodplains in Pittwater

Randwick Rockdale Monitor the recently constructed rock groynes and beach renourishment along Lady Robinsons

Beach in conjunction with Sydney Ports to assess its success and stability. Sutherland Installation of a new suite of signage on the Cronulla foreshore that will include prohibitions and

warnings and provision for the closure of the beaches (if required) and notification of the lifeguard services etc., Adoption and implementation of the recommendations of the Shoreline Protection Works Assessment Study. Ongoing monitoring of known risk areas.

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Warringah Collaroy Narrabeen • Re-convening sub-committee to discuss sub-plan • Preparation of SES approved sub-plan for CN – sighed off by all relevant

stakeholders. • Implementation of approved operational procedures to address erosive events • Trail operational procedures

Willoughby None Woollahra Awaiting outcomes of the SCCG research To assist in defining the best way forward for coastal risk management, answers from question 10 in the survey identifies the resource needs for risk management in Sydney’s coastal councils. The following is a list of needs or gaps in the process collated from the survey and consultation responses:

Consistency • A consistent approach to risk management across all spheres of government • Coordination and direction set at the State Government Level. • More State Government help both in design and financially to undertake works • Coastal works are very expensive and often beyond the capability of one Council to fund when

the beach is used by residents beyond the Council area. Increased funding is required. • Technical expertise • A standardised risk management framework for Local Government • State government policy and guidelines that provide direction for Local Government as well as

appropriate regulation of professional practitioners and industry • Unify methodologies and decision making tools across member councils to ensure consistency in

risk assessment • Lobby state government to update and develop appropriate policies and manuals for all hazards

including geotechnical hazards • Coordinate development of model risk management frameworks for SCCG member councils • Have the amended Coastline/Estuary/Hazard manual ready prior to commissioning of

consultants and undertaking Coastal Management Plans in house to ensure current best practice is applied

• To provide Councils with a definition of the coastal zone (i.e. is it the same as SEPP 71 where council’s were asked to draw there own coastal zone – very scientific). A lot of the questions seem aimed more at ocean coastal risks

• Identification and definition of the coastal risks Communication • Continued and improved regional focus and information exchange • Improve communication methodologies and process within and between Councils Necessary Resources and Funding • Increased funding opportunities • Lobby State and Federal Governments for increased funding, to conduct comprehensive

assessment of coastal risk along the entire NSW Coast, to accept responsibility for the management of the coastline in its entirety and to assist in regional beach nourishment programs.

• Ways to reduce red tape to get projects underway • Ways of raising the issues of coastal management with politicians and the public • Funds for planning and risk evaluation • Funds to implement risk treatment measures • Funds for implementing community education

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4.1 Recommendations and Ways Forward The Sydney coastal region encompasses a large diversity of natural and anthropogenic risks. Results of the survey and consultation have shown that there are gaps in the risk management process and that the majority of Councils manage their risks in an ad hoc manner. Most importantly each member Council needs to identify the potential risks within their Local Government Area to both life and property. Councils need adopt a thorough policy and formulate legal processes that are well-structured and supportive for managing risks and not address risk in an ad hoc manner currently undertaken by a majority of Councils. Some Councils presently do not address a potential risk until an event has occurred and this major challenge needs to be addressed. There is a need for a system with a strong framework that covers environmental risks including public areas. This framework should be in the approach of a strategic plan that could be put into place for all councils. Below are two examples of how risks could be managed in SCCG Councils followed by recommendations and suggested best practice techniques. Case Study Example: Integrated Risk Approach A multi-faceted approach will link impacts at various stages and various divisions e.g. will there be a risk that will impact on more than one area or division/business plans. This process looks at the most important, wide spread impacts/risks and identifies the impact of these risks on services etc. Once the risk has been identified the relevant Council division/s addresses the risk, leading to development of a management committee that will identify possible solutions of how to mitigate or fix the risk. By making risk a normal operational program, it then becomes part of the bigger picture, where investments can be prioritised with respect to the likelihood of risk. This makes the system much more robust. Case Study Example: Integrated Council Approach Develop a higher level risk management plan document that deals at the higher Council level. The document is then provided to individual division/section so they can identify risks relevant to their division and develop a section management plan for their own operational area plan. Everyone in Council will have the same methodology but each division will have their own process of identification, assessment and review for risk management.

4.4.1 Recommendations The survey and consultations provided an opportunity to understand the nature and importance of risk management for SCCG member Councils. The following is a list of recommendations suggested in the survey and consultations.

• Link performance of risk management to staff and key performance measures • Identify a monitoring program or check list that identifies the risk, establishes whether the risks

has been addressed and how • Develop risk strategies that allow for the reporting of the risk and how it is rated • Formal training for managing risks • Develop a risk management manual • Risk management is a tool. Councils need a guideline that helps focus on the risk rather than on

the potential hazard. This way the risk is mitigated before it occurs • There needs to be a push in cultural change within councils to reduce isolation between council

section and also between councils. It is vital that staff discuss aspects of risk management within Council and between all Councils

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• Each Council should have a systematic understanding of their natural systems that is linked into the process of urban development. Once there is an understanding a model can be devised that simulates the likelihood of an event happening that could affect both natural and developed environments. This scenario based predictive model will look at the consequences of the events and the likelihood of it occurring, the two key aspects of risk management outlined in AS/NZS 4360:2004.

4.4.2 Recommendations for the Sydney Coastal Councils Group The SCCG’s role is to provide member Councils with the necessary support and guidance they need. Issues that can be addressed with the help of the SCCG are listed below:

• Greater and more co-ordinated communication within and between Councils and the community • Defined emergency management coordination and response planning • Assist in identifying what each Council’s obligation is to report and assess each risk in their Local

Government Area • Assist in establishing whether each Council’s GIS data can be used to map areas of risk and rank

these risk zones.

4.4.3 Suggested Best Practice for Risk Management Several stages of the coastal risk management process are recommended here, providing a framework to measure the progress in the implementation of integrated coastal risk management. These stages can be broken down into a series of actions that are needed to assess and manage coastal risk. The stages of coastal risk assessment include:

• Identify the potential risks in the coastal zone • Analyse the risks determining the likelihood, magnitude and potential consequences of the risk all

providing an estimated level of risk • Evaluate, assess and prioritise potential coastal risks

The stages of the coastal risk management process include:

• Establishing the strategic, organisational and risk management context • Treating the coastal risks • Monitoring and reviewing performance of the coastal risk management process

It is recommended that determining and implementing treatment options for risk be based on Australian Standards equation for risk management: Risk = likelihood x consequences This can be established during the assessment process. Possible generic solutions include but are not limited to the following:

• Avoid the risk • Mitigate the risk • Reduce the likelihood of the risk occurring • Reduce the consequences when the risk occurs • Share the risk • Retain the risk • Physically separate the buffer zones • Duplicate resources • Transform the risk

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Suggestions for environmental risk management such as in the coastal zone can include but are not limited to:

• Regular interaction between scientists and managers from the planning stages • Defining expectations, capabilities and goals • Develop a set of measurable objectives • Use conceptual models and assessment points • Develop a focus for multiple stressor analysis

5. Conclusion The overall aim of this project was to establish the current state of play for risk management in the SCCG Councils, identify the gaps in the process and determine the potential ways forward. Careful consideration should be given to the process of managing risks including the course of defining, identifying, analysing, assessing, treating and monitoring the risk. Councils need to be committed to minimising the impacts of risks including personal injury and loss or damage to the environment and infrastructure. Risk management is a valuable tool and needs to be an ongoing issue that is revised on a continual basis.

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Appendix 1: Coastal Risk Management Survey

Sydney Coastal Councils Group Coastal Risk Management Working Group

Member Council Consultation Survey April 2005

Survey questions for consideration

Sydney Coastal Councils Group (SCCG) member Councils have identified a need to assess current Local Government practices in relation to coastal risk management, risk assessments and associated management responses. This will be of benefit in the decision-making process, which involves identifying, assessing and monitoring of coastal risks by evaluating the environmental, economic, social and political aspect of each risk in the coastal zone. This will benefit organisations by encouraging trans-disciplinary participation, facilitating improved communication between the relevant parties and bridging the gap in our understanding of risk management processes. Name: Council: Phone: Email: Position: Risk management responsibilities: What is your training in risk management? Are there other officers in Council who deal with Risk Management (what/who)? Other relevant Council contact:

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Defining Coastal Risk Management 1. Risk management is a tool used to make decisions about the probability of an event and its resultant

consequences. It is defined by Australian Standard 4360 (1999) as “the culture, processes and structures that are directed towards realising potential opportunities whilst managing adverse effects”. Management of coastal risk is subjective as there are different reasons and values that influence the cost benefit ratio of protecting the coastal zone such as the loss of property, the value of a beach, the cost of protective works whether it be construction or renourishment, or the value of the coastal zone by user groups e.g. surfers, land owner and tourism industry.

a) How would you define risk management of the coastal zone for your local government area?

Why? e.g. Do you use the Australian Standards definition? Does the definition only cover risks from natural processes or does it also encompass human-influenced risks?

b) Do you identify and address coastal risk geographically e.g. open beach/coast, headland,

according to the risk e.g. risk to people, public property, private property, environmental/aesthetic influences?

c) Does your Council integrate management of all risks e.g. flood, bushfire, coastal, or does it

manage each one separately?

d) Please tick the appropriate column that indicates your Council’s progress in the coastal risk

management process. Concern Yes No Comment/How?

Do you have a coastal management plan or have plans to do one or do a review?

Do you analyse and evaluate risk management?

Does Council set criteria against which risks will be assessed?

Do you determine the management options of a

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potential risk? How? Do you communicate and consult with internal and external stakeholders?

2. Coastal risk management encompasses the steps of identifying the risks, risk assessment, decision-

making and reduction of risks using scientific knowledge and stakeholder consultation into a single management procedure making a more complete, transparent decision-making process e.g. via a coastal management plan.

In the tables below, please tick the appropriate responses that apply to your Council’s coastal zone for coastal risk management. The tables are in two parts:

• the first table identifies the categories of potential risks while, • the corresponding table highlights the issues within each category.

From these tables please identify in order of concern the coastal zone risks for your Council area with 1 being the highest concern.

Risk Group Council’s order of concern for risks - with 1 the

highest concern A. Risks to people (injury or death) B. Risks to property (structural & other damage) C. Risks to the environment D. Risk to society E. Risk to councils & agencies

Risk Is this risk common to your

Council’s coastal zone?

Yes No

Have you dealt with

these risks?

Method e.g. Plan of

Management, Community consultation

Order of Concern

A. Risks to people 1 to 7 Most Least

To beach users from rips, currents, waves, sand bars, pollution, marine stingers, sharks

To walkers and fishers from rockfalls, landslides and waves

To sunbakers and children from dune slumping following beach erosion

To boaters particularly at entrance bars

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To waterway users from surf craft, boats and jet skis

From coastal flooding, inundation and tsunami

Associated with public use of or access to coastal facilities, such as rock pools, training walls and walkways

B. Risks to property 1 to 4 Most Least

From coastal erosion and recession

From slope instability (landslide)

From climate change

From coastal flooding, inundation and tsunami

C. Risks to the environment

1 to 3 Most Least

Degradation of ecosystems

Loss of habitat or species

Loss of natural heritage

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D. Risk to society

1 to 4 Most Least

Loss of social or economic opportunity

Loss of amenity (beaches, views, etc.)

Loss of access

Loss of cultural heritage

E. Risk to councils & agencies

1 to 2 Most Least

Public liability associated with use of public land and facilities

Lack of adequate resourcing

Other

Questions for discussion during consultation interview

• How is coastal risk management addressed in your Council? For instance do you have a coastal management plan?

• Does it adequately address coastal risk planning, management and mitigation incorporating best practice measures including scientific knowledge, social and cultural needs and community needs? How do you assess this (e.g. tests, court case)?

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3. The following question addresses the resources you may use to help manage risks in the coastal zone. Please indicate if you use any of the following and if so how?

Resource Yes No How?

Use in-house resources and staff

Hire consultants

NSW Local Government Act 1993

NSW Coastline Hazards Policy (within the Coastline Management Manual 1988)

NSW Coastal Policy 1997

NSW Coastal Protection Act 1979 (2002 Amendments)

NSW Environmental Planning and Assessment Act 1979

Estuary Management Manual 1992

Floodplain Management Manual 2001

ANZECC Water Quality guidelines 2000

Australian Standards 4360 Risk Management Standard 1999

Public access guidelines and standards

Provisions for walkways guidelines and standards

Standards and guidelines for sign design and instillation

Other

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4. How do you incorporate and manage the coastal risks at a Local government level? e.g. LEP, DCP, Plan of Management, Council Corporate Management Plan, other e.g. SOE

Examples How?

5. How does your Council review, monitor and/or audit identified risks in the coastal zone? What

are your processes for review?

Responses for Managing Coastal Risk 6. Communicating risks of coastal hazards to the public has been identified as an important issue of

concern. There is a need to consider and identify effective communication mechanisms to inform community of risk and clarify specific hazards and land use limitations. Some examples given in the preliminary survey of how member Councils communicate risks to the community are through signage, education programs, formal letters advising of possible hazards to private property and having management plans on public exhibition.

a) How do you communicate the possible hazards and resultant risks to the local community?

Generally Specific

b) What future plans do you have to communicate with the public?

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c) What challenges do you face communicating coastal risks to the public?

Questions for discussion during consultation interview

• Why do you communicate? • What do you communicate? Broad or remote issues? Specific or site-specific issues? • How do you communicate? Community education programs? Signage? • Who do you communicate with? • Costs? • Insurance company issues?

7. What provisions has your insurance company asked for to assess coastal risk? e.g. priorities of risks.

8. Concerns of implementing emergency management planning and responses have been highlighted

by member Councils e.g. during times of storms. What emergency response does your Council have in place for coastal risks? Do you have a plan in place and what does it include? e.g. How is it signed off? specific chain of command, response plans, designated responsibilities, materials for emergency works

Future of Coastal Risk Management 9. The following question addresses your future activities and plans for coastal risk management. a) What are your plans for coastal risk management over the next 12 months?

Questions for discussion during consultation interview

• Are you awaiting the revised NSW Coastline Management Manual and Hazard Policy before further work in coastal risk management is undertaken in your Local Council?

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10. The final question addresses how you think coastal risk management can be improved and any final comments.

a) Please indicate below what other resources would better assist you in suitably managing coastal risk

management.

Critical needs Wish list e.g. for greater understanding, implementation, management

b) How do you think the SCCG can help your Council and collectively help member Councils across

Sydney in coastal risk management?

Critical needs Wish list

c) Please provide comment on the preliminary agenda for Coastal Risk Management Forum in

Appendix 3

Questions for discussion during consultation interview • What do you think are the gaps in the coastal risk management process? • Do you have any suggestions of how risk management of the coastal zone can be

improved?

Further comments

The information you provide will be used to further scope the Coastal Risk Management Forum. We look

forward to your participation. On behalf of the Coastal Risk Management Working Group and the SCCG we thank you for taking the time to complete this survey and providing the Group with the necessary information.

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Appendix 2: Proposed outline for the Coastal and Estuarine Risk Management Forum

Questions to be addressed at the forum What is risk management? What are the aims and expected outcomes of the forum? What is the purpose of the forum? What are the most common risks of the coastal zone faced by all member councils? What are the most common practices of risk management in each council? What are the gaps in risk management assessment and implementation? What strategic outputs and outcomes do you expect or need for better management of risks? e.g. Outputs Briefing notes of key risks and suggested management options Detailed literature review of key risks A list of all available tools and instruments useful for risk management of the coastal zone Outcomes Improved understanding of core issues and problems Formulation of a guideline for risk management with suggested solutions Improved integration and collaboration between all stakeholders and management officers Strategies to deliver outcomes Detailed survey and /or interview or relevant stakeholders Workshop/Forum Short-long term research projects Identification of funding opportunities New NSW Coastline Management Manual This proposed agenda for the Coastal Risk Management Forum is based on the preliminary survey results from the Coastal Risk Management pilot study and issues identified by the Sydney Coastal Councils Group Coastal Risk Management Working Group and the individual member councils survey responses and direct consultations:

• An overview of the survey results on coastal risk management including: What is risk management for the coastal zone? What are the common risks faced by the member Councils? What are the common practices of risk management? What are the gaps in coastal risk management practice? What are the current identified needs?

• NSW Planning Reforms (?) • Coastal hazard management process • Local government issues including (case studies)

o responsibilities and liabilities, o community communication, o planning controls

• Emergency management responses including (case studies): o What is an emergency? o Stakeholder roles and responsibilities o Local government case studies

• The need for a holistic approach to integrating risk management • Summary – Expert panel discussion and action formulation