ballina local government area - water safety nsw€¦ · · 2017-03-243.1.1 action planning...

Funded by the NSW Government under the NSW Water Safety

Black Spots Fund watersafety.nsw.gov.auA NSW Government water safety initiative

Coastal Public Safety Risk Assessment Ballina Local Government Area

July 2013

Ballina Local Government Area: Coastal Public Safety Risk Assessment

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© Surf Life Saving New South Wales, Belrose, 2013 All Rights Reserved. Disclaimer While Surf Life Saving New South Wales endeavours to provide reliable analysis and believes the contents of this report to be accurate, it will not be liable for any claim by any party acting on such information. All rights are reserved and no part of this publication covered by copyright may be reproduced or copied in any form or by any means except with the written permission of Surf Life Saving New South Wales. We accept no duty of care or liability to you or any third party for any loss suffered in connection with the use of this document.


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Table of Contents EXECUTIVE SUMMARY ..................................................................................................................................... 5

SUMMARY OF RECOMMENDATIONS ............................................................................................................... 7

1. INTRODUCTION, SCOPE & CONTEXT .......................................................................................................... 11

1.1 INTRODUCTION ................................................................................................................................................ 11 1.2 SCOPE AND CONTEXT ........................................................................................................................................ 12 1.3 LIMITATIONS ................................................................................................................................................... 13 1.4 DEFINITION OF TERMS ...................................................................................................................................... 13 1.5 PROJECT TEAM ................................................................................................................................................ 15

2. ASSESSMENT METHODOLOGY ................................................................................................................... 16

2.1 INTRODUCTION ................................................................................................................................................ 16 2.2 ASSESSMENT AREA/PARAMETERS ....................................................................................................................... 16 2.3 SITE INSPECTION .............................................................................................................................................. 18 2.4 HAZARD IDENTIFICATION AND RISK ASSESSMENT ................................................................................................... 18 2.5 DATA ANALYSIS ............................................................................................................................................... 19 2.6 BEACH HAZARD RATINGS AND OVERVIEW............................................................................................................. 20 2.7 BEACH TYPES AND HAZARD RATINGS ................................................................................................................... 21 2.8 ABSAMP BEACH TYPE CHARACTERISTIC OVERVIEW AND HAZARDS .......................................................................... 22 2.9 FACILITY VISITATION RATES (FVR) ...................................................................................................................... 23 2.10 FACILITIES ..................................................................................................................................................... 26 2.11 BEACH USAGE AND INCIDENT STATISTICS ............................................................................................................ 27 2.12 COMMUNICATION AND CONSULTATION ............................................................................................................. 34

3. RISK ASSESSMENT FINDINGS ...................................................................................................................... 37

3.1 ACTION PLANNING PRIORITY (GROSS RISK) ........................................................................................................... 37 3.1.1 Action Planning Priority Index .............................................................................................................. 37 3.1.2 Australian Beach Safety & Management Program Rating (ABSAMP Rating)...................................... 38 3.1.3 Local Population Rating ....................................................................................................................... 39 3.1.4 Human/Activity Interaction Rating ...................................................................................................... 40 3.1.5 Access Rating ....................................................................................................................................... 41 3.1.6 Action Planning Priority Score .............................................................................................................. 42

3.2 OVERVIEW OF PRINCIPAL RISK TREATMENTS ......................................................................................................... 44 3.2.1 Introduction ......................................................................................................................................... 44 3.2.2 Hierarchy of Risk Treatments (Controls) .............................................................................................. 44 3.2.3 Education and Awareness Programmes .............................................................................................. 45 3.2.4 Safety Signage ..................................................................................................................................... 48 3.2.5 Emergency Marker System .................................................................................................................. 53 3.2.6 Access Infrastructure and Ongoing Capital Works/Maintenance Programmes .................................. 55 3.2.7 Public Rescue Equipment ..................................................................................................................... 57 3.2.8 System of Supervision .......................................................................................................................... 59

4. EMERGENCY RESPONSE ............................................................................................................................. 68

4.1 EMERGENCY COMMUNICATIONS/REPORTING (000) .............................................................................................. 68 4.2 EMERGENCY RESPONSE BEACONS ....................................................................................................................... 68 4.3 EMERGENCY SERVICE RESPONSE ......................................................................................................................... 70 4.4 BALLINA EMERGENCY TASKING DETAILS ............................................................................................................... 72

5 MONITOR AND REVIEW .............................................................................................................................. 74

6 REFERENCES ................................................................................................................................................ 75


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APPENDIX A: ACCESS AND SIGNAGE SCHEDULE APPENDIX B: RISK REGISTER AND TREATMENT PLAN APPENDIX C: PUBLIC RESCUE EQUIPMENT APPENDIX D: COVERAGE MAPS APPENDIX E: SURVEY RESULTS


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Executive Summary This report contains findings and recommendations which align with current International and Australian standards, guidelines and best practice risk management processes. The report contains information specific to locations under the authority of Ballina Shire Council and the National Parks and Wildlife Service (NPWS) - Office of Environment and Heritage. These locations include (north to south):

1. Seven Mile Beach/Lennox Head 2. Boulder North 3. Boulder South 4. Skennars Head Rock Platforms 5. Sharpes 6. Flat Rocks 7. Angels North 8. Angels South

9. Black Head 10. Shelly 11. Ballina Head 12. Lighthouse 13. South Ballina 14. Beswicks 15. Robins 16. Patches

Activities/Facilities The Ballina Local Government Area (LGA) is a popular destination and sees year round public usage and recreational activity, including swimming, surfing (inc. all surf craft), fishing, snorkelling/diving, boating, and walking. A number of facilities support coastal usage and activities including well maintained car parks and key beach access, holiday accommodation options, a number of public toilets/changing rooms, BBQ’s and picnic tables. Hazards/Risks Though outlined in more detail within the report and appendices, the Ballina LGA has a number of consistent hazards due to the geography and high energy nature of the area. Based on the risk assessment in Appendix B, these are the hazards that have been rated with the greatest inherent risk for the Ballina LGA: Strong ocean currents/rip currents: As a result of wave action and beach type Strong tidal current/river mouth: As a result of wave action and tidal conditions Waves/waves overwashing: As a result of model wave height and exposure to ocean swells Inshore holes/deep water: As a result of coastal processes, wave action and beach type Slippery rocks: As a result of coastal geography/break walls and wave action Shallow sandbanks/shore dump: As a result of coastal process, wave action and beach type Submerged rocks: As a result of coastal geography and sand movement Stingers/sharks: As a result of marine life Cliffs: As a result of coastal geography Rock shelves/platforms: As a result of coastal geography Boating traffic: As a result of human interaction Based on the risk analysis of these hazards, it has been identified that they pose risk to the following types of recreational users: Strong ocean currents: Swimmers, surf craft users, fishermen, rock platform users Strong tidal current/river mouth: Swimmers, surf craft users, fishermen, break wall users, boaters Waves/waves overwashing: Swimmers, surf craft users, fishermen, rock platform users Inshore holes/deep water: Swimmers, fishermen Slippery rocks: Fishermen, rock platform users Shallow sandbanks/shore dump: Swimmers, surf craft users Submerged rocks: Swimmers, surf craft users, fishermen Stingers/sharks: Swimmers, surf craft users Cliffs: Fishermen, walkers, sight seers


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Rock shelves/platforms: Surf craft users, fishermen, rock platform users Boating traffic: Swimmers, surf craft users, boaters Existing Risk Treatments Land Managers in partnership with a number of other organisations have implemented the below risk treatment initiatives within the Ballina Local Government Area. These include: o Safety Signage o Public rescue Equipment o System of Supervision (Lifeguarding and Lifesaving services) o Education Programmes


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Summary of Recommendations Please note:

o The below recommendations are provided as options for guidance only and will not be binding to the Land Manager

o The below recommendations are in no particular order in regards to prioritisation

o Further explanation to the recommendations should also be referenced and can be found on the corresponding pages

Recommendation 1 Ballina Shire Council should consider implementing the following risk treatment options: Strategic Coordination: 1.1 Beach usage and incident data (e.g. drowning incidents, emergency callouts, lifesaving and lifeguards

statistics) should be used when making informed decisions about the implementation of risk treatments for coastal safety. (p.33)

1.2 There is the opportunity for a local beach safety liaison committee to be developed. This committee would

be an effective forum which raises coastal safety issues and implements drowning prevention strategies in the Ballina Local Government Area. It is recommended that the committee have a standing item on all future meeting agendas titled ‘coastal risk management – status and issues’, or similar. Recommendations found in this report can be addressed in this agenda item. (p.36)

1.3 Treatment options in this report should be implemented using a staged/prioritisation approach, based on evidence. (p.43)

Education: 1.4 Existing education and awareness programmes within and around the Ballina Local Government Area

should continue to be implemented and reviewed. (p.47) 1.5 Education and awareness programmes should include standardised key safety messages which are

recognised by the aquatic industry (e.g. NSW Water Safety website, ‘watersafety.nsw.gov.au’). (p.47) 1.6 Display safety information (e.g. posters) which promotes key water safety messages, at amenity blocks

and visitor information displays directly located around coastal beach access. (p.47) 1.7 Peak coastal water safety agencies currently provide surf education to local schools and community

groups upon request. The Ballina Shire Council should work with these agencies to promote these programmes and encourage enhanced participation at a local level. (p.47)

Signage: 1.8 Standardised water safety signage that aligns to Australian standards and best-practice ‘style’ should be

implemented at the locations listed in ‘Appendix C’. This may include the maintenance and upgrade of existing signage through planned works schedules, the consolidation of multiple existing signs into a single sign (less signs) or the removal of unnecessary signage. (p.52)

1.9 Temporary signage should be used at locations where there is a higher risk of injury due to temporary

hazards such as dangerous access/beach erosion and debris. (p.52) Access: 1.10 Formal access paths identified in ‘Appendix A’ should continue to be regularly maintained through

ongoing infrastructure and capital works programmes. This will encourage formal access use (rather than informal), enhance the effectiveness of water safety signage and minimise the quantity of signage needed. (p.56)


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1.11 Informal access paths identified in ‘Appendix A’ should be considered for redirection or consolidation, in order to promote/facilitate the use of formal access. (p.56)

Surveillance and Supervision: 1.12 Explore the means to fund the lifeguard service at Lighthouse and Seven Mile Beach/Lennox Head to

cover both the New South Wales and Queensland School Holiday periods. (p.67) 1.13 When the volunteer lifesaving service returns to Lighthouse Beach, Ballina Shire Council should explore

the means to fund the expansion of the lifeguard services at Shelly Beach to cover 7 days a week during the spring, summer and autumn school holidays. (p.67)

1.14 When the volunteer lifesaving service returns to Lighthouse Beach, Ballina Shire Council should explore

the means to fund a 7 month lifeguard service at Lighthouse Beach, to reflect the same patrol periods and hours covered by the service at Seven Mile Beach/Lennox Head. (p.67)

Emergency Response: 1.15 The Ballina Local Emergency Management Committee to coordinate the relevant emergency services and local surf life saving assets to conduct annual training scenarios at the Ballina Bar. (p.70) Monitor and Review: 1.16 In consultation with relevant stakeholders this document should be reviewed annually to measure the

effectiveness of any risk mitigation strategies and drowning prevention initiatives that have been implemented. (p.74)

1.17 All drowning prevention strategies should be documented and incorporated into the relevant strategic

and management plans. This will ensure consistency throughout the management area and a structured approach to maintenance. (p.74)

Recommendation 2 The National Parks and Wildlife Service – Office of Environment and Heritage should consider implementing the following risk treatment options: Strategic Coordination: 2.1 Beach usage and incident data (e.g. drowning incidents, emergency callouts, lifesaving and lifeguards

statistics) should be used when making informed decisions about the implementation of risk treatments for coastal safety. (p.33)

2.2 There is the opportunity for a local beach safety liaison committee to be developed. This committee would be an effective forum which raises coastal safety issues and implements drowning prevention strategies in the Ballina Local Government Area. It is recommended that the committee have a standing item on all future meeting agendas titled ‘coastal risk management – status and issues’, or similar. Recommendations found in this report can be addressed in this agenda item. (p.36)

2.3 Treatment options in this report should be implemented using a staged/prioritisation approach, based on evidence. (p.43)

Education: 2.4 Existing education and awareness programmes within and around the Ballina Local Government Area

should continue to be implemented and reviewed. (p.47) 2.5 Education and awareness programmes should include standardised key safety messages which are

recognised by the aquatic industry (e.g. NSW Water Safety website, ‘watersafety.nsw.gov.au’). (p.47)


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2.6 Display safety information (e.g. posters) which promotes key water safety messages, at amenity blocks and visitor information displays directly located around coastal beach access. (p.47)

Signage: 2.7 Standardised water safety signage that aligns to Australian standards and best-practice ‘style’ should be

implemented at the locations listed in ‘Appendix C’. This may include the maintenance and upgrade of existing signage through planned works schedules, the consolidation of multiple existing signs into a single sign (less signs) or the removal of unnecessary signage. (p.52)

2.8 Temporary signage should be used at locations where there is a higher risk of injury due to temporary

hazards such as dangerous access/beach erosion and debris. (p.52) Access: 2.9 Formal access paths identified in ‘Appendix A’ should continue to be regularly maintained through

ongoing infrastructure and capital works programmes. This will encourage formal access use (rather than informal), enhance the effectiveness of water safety signage and minimise the quantity of signage needed. (p.56)

2.10 Informal access paths identified in ‘Appendix A’ should be considered for redirection or consolidation, in

order to promote/facilitate the use of formal access. (p.56) Monitor and Review: 2.11 In consultation with relevant stakeholders this document should be reviewed annually to measure the

effectiveness of any risk mitigation strategies and drowning prevention initiatives that have been implemented. (p.74)

2.12 All drowning prevention strategies should be documented and incorporated into the relevant strategic

and management plans. This would ensure consistency throughout the management area and a structured approach to maintenance. (p.74)

Recommendation 3 The Water Safety Advisory Council should consider implementing the following risk treatment options: Strategic Coordination: 3.1 A review be commissioned to analyse the historical environmental conditions at the time of recorded

drowning deaths where the Bureau of Meteorology is able to supply data. Such a report should identify the relevant trends and causal factors. (p.33)

Education:

3.2 Develop relationships with tourism agencies to expand on the coastal accommodation network program

with the aim of distributing standardised surf safety collateral (e.g. brochures, flyers, and pamphlets) to all coastal accommodation providers in the Ballina Local Government Area. (p.47)

Signage:

3.3 Coastal accommodation providers (e.g. resorts, caravan parks and motels) that have direct beach access

should investigate the use of temporary signage at the main entry points during dangerous surf warnings issued by the Bureau of Meteorology (BOM) – warning the public of large/hazardous waves. (p.52)

3.4 With guidance from the NSW Ministry for Police and Emergency Services and Land and Property

Information a state-aligned emergency marker program at all identified access locations should be implemented once such a program is established. (p.53)


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Public Rescue Equipment:

3.5 The New South Wales Water Safety Advisory Council should explore the means to fund the expansion and continued maintenance of the ‘Angel Ring Project’ in consultation with the Australian National Sports Fishing Association (NSW Branch) and the Recreational Fishing Alliance of NSW at the locations outlined in Appendix C. Final positioning should be determined by ANSA NSW. (p.58)

Recommendation 4 Surf Life Saving Far North Coast Branch should consider implementing the following risk treatment options: Strategic Coordination: 4.1 There is the opportunity for a local beach safety liaison committee to be developed. This committee would

be an effective forum which raises coastal safety issues and implements drowning prevention strategies in the Ballina Local Government Area. It is recommended that the committee have a standing item on all future meeting agendas titled ‘coastal risk management – status and issues’, or similar. Recommendations found in this report can be addressed in this agenda item. (p.36)

Recommendation 5 Australian CoastSafe and Surf Life Saving New South Wales should consider implementing the following risk treatment options: 5.1 Research currently being conducted by the University of Melbourne, University of Wollongong and Surf

Life Saving Australia into a rocky coast classification model and hazard rating system for rocky coast should be commended and supported. Once this research is completed the calculations related to rocky coasts in this report should be reviewed. (p.22)

5.2 To reduce the likelihood of confusion which may lead to delays in an emergency response, Australian

CoastSafe will supply the Emergency Information Coordination Unit (EICU) (NSW LPI) with data and information collected referencing the existing localised marker system for inclusion in the Spatial Information and Mapping System (SIMS). (p.54)

5.3 A mobile emergency response beacon should be installed at Seven Mile Beach (800m south of surf club)

when the lifeguard service is not operating. (p.69)


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1. Introduction, Scope & Context

1.1 Introduction

This document is a coastal public safety risk assessment and treatment plan specific to water safety related issues identified at every beach/rock platform/break wall located on the coast of the Ballina LGA. The Land Managers of this area include the Ballina Shire Council, NWPS - Office of Environment and Heritage and Crown Lands. Tragically, NSW accounts for 50% of the national coastal drowning toll annually. As of 30 June 2013, there have been 338 coastal drowning deaths in NSW since 1 July 2004

1. The vast majority of these can be attributed to

swimming/rip-currents and rock-fishing, with almost all occurring at unpatrolled locations/times, where no expert assistance is immediately available. Accidental drowning deaths in the coastal aquatic environment can be accounted for through a number of factors known as the ‘drowning chain’. These are:

o Lack of knowledge, disregard or misunderstanding of the hazard o Uninformed or unrestricted access to the hazard o Lack of supervision or surveillance o An inability to cope once in difficulty The strategies that have been identified to address the drowning chain are:

o Education and information o Denial of access, improvement of infrastructure and/or provision of warnings o Provision of supervision o Acquisition of survival skills Figure 1.1.1: The International Life Saving Federation Drowning Chain (Source: ILSF Drowning Prevention Strategies, 2008)

1 Surf Life Saving Incident Reporting Database


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This report will be fundamental in addressing the coastal drowning issue in NSW both in the short, mid and long term. The report will do this by providing a long-term, sustainable and effective drowning prevention strategy with clear evidence/data, engagement of relevant stakeholders and the application of effective risk mitigation and drowning prevention initiatives where and when they are required. It is acknowledged that land managers have many competing priorities and limited resources. Land managers should balance their water safety land management activities within the context of their broader role to provide services and facilities to meet the current future needs of their local communities as a whole, all within a limited budget. This report recognises that there are many inherent risks associated with the NSW coastline and that in most instances these risks associated with the NSW coastline cannot be eliminated and can only be managed within the operations contexts of the land manager, taking into account all of their responsibilities and available resources. This report also recognises that visitors to these areas also have a personal responsibility for their own safety and those they are responsible for. The recommendations found in the report are representative of Australian CoastSafe’s opinion in relation to risk management at the locations assessed.

1.2 Scope and Context

Surf Life Saving New South Wales recently received funding as part of a NSW Government water safety initiative through the Water Safety Black Spot Fund to commence coastal public safety risk assessments on the NSW coastline (all accessible beaches, rock platforms and break walls). The program will be staged over several years with phase one to include the top ten drowning locations by Local Government Area in NSW. The report provides risk treatment recommendations about how to improve risk and safety management in line with current industry compliance standards: o AS/NZS ISO 31000:2009 Risk management – Principles and Guidelines

o AS2416 – 2010 Water Safety Signs and Beach Safety Flags

o AS 2899(.1&.2) – 1986 Public Information Symbols Part 1 and 2

o ISO 7001:2007 Graphical symbols - Public information symbols

o AS2342 – 1992 Development, Testing and Implementing of Information and Safety Symbols and Symbolic Signs

o ISO 9001:2000 Quality Management Systems This coastal public safety risk assessment and treatment plan has been prepared following an on-site risk assessment undertaken by Australian CoastSafe of the Ballina LGA which commenced on Monday 20 August 2012 and concluded on Thursday 24 August 2012. The assessment covered all coastal locations within the area. Aquatic areas which are excluded from this assessment include all bodies of water which are not ‘coastal’ in nature under SLSA definitions, and all hazards not directly associated with the use and immediate access to the coastal aquatic environment. While recreational and commercial boating may occur in these waters the detailed assessment of hazards and their treatments specific to boating activities falls outside the scope of this report. Boat ramps and bars at river mouths that fall within the assessed areas identified in Appendix D have been assessed within the framework of the coastal public safety risk assessment process. Information on boating safety can be found at www.maritime.nsw.gov.au. The engagement of Land Managers and other key local stakeholders was also a vital part of this risk assessment.


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Australian CoastSafe assessed the following in detail: o Access locations, classifying these as formal or informal access tracks and recommending treatment

options. Signage that should be implemented, in conjunction with an audit of current signage Appendix A. o Hazards, their potential risks, risk groups, risk scores and treatment options Appendix B. o Public rescue equipment that should be implemented, in conjunction with an audit of current public rescue

equipment Appendix C.

Other appendices include: o Coverage maps of assessed locations Appendix D.

o Survey Results Appendix E. At no time during the inspection was the water entered, they were performed from the land, along the edges of the water, along rocky outcrops, headlands, access tracks and car park access points.

1.3 Limitations

The following are acknowledged as limitations of this coastal public safety risk assessment. o The absence of an agreed and recognised methodology for rating the hazardousness of rock platforms. o Difficulty in gaining feedback from all identified stakeholders. o Limited timeframes allowed for stakeholders to provide feedback on consultative draft versions of the

report as a result of the project timeframes.

1.4 Definition of Terms

Table 1.4.1: The following is a summary of the definition of key terms used within this report.

ABSAMP Australian Beach Safety And Management Program

Attendance A snapshot of the on-beach and in-water attendance taken every two hours on a daily basis

ATV All Terrain Vehicle used by lifeguards and lifesavers to patrol the beach

Coastal Waterway A coastal body of water e.g. river/creek opening

Consequence Outcome or impact of an event

Control An existing process, policy, device, practice or other action that acts to minimise negative risk or enhance positive opportunities

Emergency Action Plan A plan that outlines the procedures to be used in the event of an emergency

Frequency A measure of the number of occurrences per unit of time

First Aid A lifesaver/lifeguard treating either a minor or major first aid incident, which may require further assistance from NSW Ambulance e.g. broken bones or stings/bites

Formal Access Formal, well maintained access ways are effective in promoting and facilitating the use of a generally safer ‘track’, effectively exposing people to the relevant safety signage/information, reducing the quality of signage required and enhancing emergency reporting/location identification.


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Geomorphology Is the scientific study of landforms and the processes that shape them

Hazards A source of potential harm

Hazard Symbols A graphical symbol used together with a safety colour and safety shape to form a safety sign

Informal Access Informal access ways may create higher risk through use (uneven ground/hazards), may expose people to dangerous locations (cliffs/sink-holes), may require duplicate/multiple signage (inefficient/costly) and may make emergency location reporting difficult (location awareness).

Inherent Risk The risk that an activity would pose if no controls or other mitigating factors were in place

Lifesaving Service An organised and structured service comprised of paid lifeguards and/or volunteer lifesavers and appropriate rescue and first aid equipment supported by a coordinated backup team

Likelihood Used as a general description of probability or frequency

Modal The conditions that occur most frequently, or more often than other conditions.

Monitor To check, supervise, observe critically or measure the progress of an activity, action or system on a regular basis in order to identify change from the performance level required or expected

Peak Water Safety Agencies

A peak body is defined as a state, territory or national non-profit organisation established to cater for the needs, interests and aspirations of its members. Members may include individuals or organisations, but they will all have a common interest. Peak bodies in the water safety sector may include agencies such as Surf Life Saving, Royal Life Saving, Surf Educators Australia, Austswim, Australian Professional Ocean Lifeguard Association, Surfing NSW and the Office of Boating Safety who represent the NSW Water Safety Advisory Council as a committee member.

PRE Public Rescue Equipment (e.g. life rings)

Prevailing The conditions existing in a particular place or at a particular time

Probability A measure of the chance of occurrence expressed as a number

Preventative Action A lifesaver/lifeguard simply providing proactive direction or advice to beachgoers in a ‘preventative action’ for the beachgoer to avoid finding themselves in a position beyond their capability

Rescue A lifesaver/lifeguard rendering direct assistance to a beachgoer in difficulty in the water

Residual Risk Risk remaining after implementation of risk treatments

Rip Current Channelled currents of water flowing away from shore, typically extending from the shoreline, through the surf zone, and past the line of breaking waves

Risk Standards Australia defines risk as the effect of uncertainty on objects (AS/NZS


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31000:2009)

Risk Analysis Systematic process to understand the nature of and to the level of risk

Risk Assessment Standards Australia defines a risk assessment as the overall process of risk identification, risk analysis and risk evaluation (AS/NZS 31000:2009)

Risk Evaluation Process of comparing the level of risk against criteria

Risk Identification The process of determining what, where, when, why and how something should happen

Risk Treatment Process of selection and implementation of measures to modify risk

Risk Management Standards Australia defines risk management as coordinated activities to direct and control and organisation with regard to risk (AS/NZS 31000:2009).

Risk Register A table summarising the identified risks, the location, why it has been identified as a risk, and what current treatments are in place to lessen the risk and an overall hazard rating.

Risk Treatment Plan A table summarising how to deal with the identified risks, including a list of potential risk treatments, the risk treatments currently and any residual risk.

RWC Rescue Water Craft used by lifeguards and lifesavers. More commonly known as jet skis

Stakeholders Those people and organisations who may affect, be affected, or perceive themselves to be affected by a decision, activity or risk

1.5 Project Team

Adam Weir – Coastal Risk Manager Australian CoastSafe Surf Life Saving NSW Ph: 02-9471 8000 | F: 02-9471 8001 | M: 0419 444 003 E: [email protected] W: www.coastsafe.org.au/blueprint Coastal Risk Officers: Stuart Massey, Coastal Risk Officer, 0406 353 344, [email protected] Luke Stigter, Coastal Risk Officer, 0409 075 620, [email protected]

mailto:[email protected]

http://www.coastsafe.org.au/blueprint




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2. Assessment Methodology

2.1 Introduction

The methodology included site identification and inspection, hazard identification and risk assessment, beach identification and detailed risk assessments, beach usage and incident data and communication and consultation.

2.2 Assessment Area/Parameters

The map below provides an overview of the coastal locations within the Ballina Local Government Area subject to this coastal risk assessment. The specific site locations can be referenced in Appendix D. The area includes locations and/or facilities under the administration of: o Ballina Shire Council o NPWS

Richmond River Nature Reserve o Crown Lands The assessment identifies hazards and the associated risks of the coastal environment and is not limited to signage, car parks, access tracks, service provision, geographical hazards, geological hazards, user groups, conflicting activities and usage. The report also identifies facilities and activities that encourage people to visit the location. The geographical constraints of the assessment are determined by the areas constituting the Ballina Shire Council, including accesses to coastal aquatic venues within the area that may fall under differing Land Manager jurisdiction. Specific geographic constraints may be determined for individual venues as part of project preparation and be represented within the report. Aquatic areas which are excluded from this assessment include all bodies of water which are not ‘coastal’ in nature under SLSA definitions, and all hazards not directly associated with the use and immediate access to the coastal aquatic environment.


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Figure 2.2.1: Ballina Local Government Area overview of beach locations


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2.3 Site Inspection

Site inspections were completed on the following dates: Table 2.3.1: Assessed locations and the dates of their assessment

2.4 Hazard Identification and Risk Assessment

During the site inspection hazards were identified within the area inspected and assessed in terms of their individual risk to public safety (extreme, high, medium, low) using a risk assessment matrix Appendix B. The risk assessment matrix considers both the type of harm that could be sustained as a result of an individual hazard and the likelihood of this harm actually occurring. Hazards/Risks Though outlined in more detail within the report and appendices, the Ballina LGA has a number of consistent hazards due to the geography and high energy nature of the area. Based on the risk assessment in Appendix B, these are the hazards that have been rated with the greatest inherent risk for the Ballina LGA: Strong ocean currents/rip currents: As a result of wave action and beach type Strong tidal current/river mouth: As a result of wave action and tidal conditions Waves/waves overwashing: As a result of model wave height and exposure to ocean swells Inshore holes/deep water: As a result of coastal processes, wave action and beach type Slippery rocks: As a result of coastal geography/break walls and wave action Shallow sandbanks/shore dump: As a result of coastal process, wave action and beach type Submerged rocks: As a result of coastal geography and sand movement Stingers/sharks: As a result of marine life Cliffs: As a result of coastal geography Rock shelves/platforms: As a result of coastal geography Boating traffic: As a result of human interaction

Location Land Management Authority Date

Seven Mile/Lennox Head Ballina Shire Council Monday 20 August 2012

Boulder North Ballina Shire Council Tuesday 21 August 2012

Boulder South Ballina Shire Council Tuesday 21 August 2012

Skennars Head Rock Platforms Ballina Shire Council Tuesday 21 August 2012

Sharpes Ballina Shire Council Tuesday 21 August 2012

Flat Rocks Ballina Shire Council Tuesday 21 August 2012

Angels North Ballina Shire Council Wednesday 22 August 2012

Angels South Ballina Shire Council Wednesday 22 August 2012

Black Head Ballina Shire Council Wednesday 22 August 2012

Shelly Ballina Shire Council Wednesday 22 August 2012

Ballina Head Ballina Shire Council Wednesday 22 August 2012

Lighthouse Ballina Shire Council Thursday 23 August 2012

South Ballina Ballina Shire Council & National Parks and Wildlife Service

Thursday 23 August 2012

Beswicks Ballina Shire Council Thursday 23 August 2012

Robins Ballina Shire Council Thursday 23 August 2012

Patches Ballina Shire Council Thursday 23 August 2012


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Based on the risk analysis of these hazards, it has been identified that they pose risk to the following types of recreational users: Strong ocean currents: Swimmers, surf craft users, fishermen, rock platform users Strong tidal current/river mouth: Swimmers, surf craft users, fishermen, break wall users, boaters Waves/waves overwashing: Swimmers, surf craft users, fishermen, rock platform users Inshore holes/deep water: Swimmers, fishermen Slippery rocks: Fishermen, rock platform users Shallow sandbanks/shore dump: Swimmers, surf craft users Submerged rocks: Swimmers, surf craft users, fishermen Stingers/sharks: Swimmers, surf craft users Cliffs: Fishermen, walkers, sight seers Rock shelves/platforms: Surf craft users, fishermen, rock platform users Boating traffic: Swimmers, surf craft users, boaters

2.5 Data Analysis

Data relevant to this risk assessment has been considered in the production of the report. These include: o Australian Beach Safety and Management Programme (ABSAMP) o Australian Bureau of Statistics – 2010 Census data o Australian Lifeguard Service Statistics o BeachSafe (2012) www.beachsafe.org.au o NSW Tourism Statistics o Rock Fishing Review - Bradstreet et al, (2012) – Research Review of Rock Fishing in New South Wales. Surf

Life Saving Australia: Sydney). o SLSA Incident Reporting Database (IRD)


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2.6 Beach Hazard Ratings and Overview

The ABSAMP (Australian Beach Safety and Management Programme) was developed by Professor Andrew Short from the University of Sydney Coastal Studies Unit in conjunction with Surf Life Saving Australia. The programme has identified coastal hazards that affect bathers and rates the safety of the beach on a scale of one to ten, where one (1) is the least hazardous and ten (10) is the most hazardous. The beach hazard ratings and definitions are provided in the following table.

Table 2.6.1: ABSAMP Beach Hazard Ratings

The beach hazard rating is calculated by determining the beach type and wave height. This can be done under either modal (average) or prevailing (current) conditions. The beach hazard rating is then calculated by using the following table:

Table 2.6.2: Beach hazard rating calculation matrices for wave dominate beaches

Wave Height

Beach Type

< 0.5 (m)

0.5 (m) 1.0 (m) 1.5 (m) 2.0 (m) 2.5 (m) 3.0 (m) > 3.0 (m)

Dissipative 4 5 6 7 8 9 10 10

Long Shore Bar Trough

4 5 6 7 7 8 9 10

Rhythmic Bar Beach

4 5 6 6 7 8 9 10

Transverse Bar Rip

4 4 5 6 7 8 9 10

Low Tide Terrace 3 3 4 5 6 7 8 10

Reflective 2 3 4 5 6 7 8 10

The beach hazard ratings presented in this report relate to modal beach conditions and as such the hazard rating of a beach may increase when conditions alter e.g. with increasing wave height, winds, strong tides and high tide. Furthermore, a hazard rating is also applied to an average person and therefore depending upon an individual's own skill, understanding and competence in relation to a certain area the hazard may in fact be greater or less. The ABSAMP hazard ratings for the inspected areas of the Ballina LGA are detailed within the next section of the report.

Hazard Rating Details

1 - 3

Least Hazardous: Low danger posed by water depth and/or weak currents; however, supervision still required, in particular for children and poor swimmers.

4 - 6

Moderately Hazardous: The level of hazard depends on wave and weather conditions, with the possibility of strong rips and currents posing a moderate risk.

7 - 8

Highly Hazardous: Experience in strong surf, rips and currents required, with beaches in this category considered dangerous.

9 - 10

Extremely Hazardous: Identifies beaches that are considered extremely dangerous due to strong rips and currents, and large breakers.


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2.7 Beach Types and Hazard Ratings

The hazard rating for the assessed locations is listed in Table 2.7.1. The table provides the hazard rating and descriptive label/name type for each specific beach location. Table 2.7.1: Hazard Ratings – Ballina Local Government Area

Location Name ABSAMP no. ABSAMP Rating ABSAMP Type

Seven Mile/Lennox Head nsw021 6 Longshore bar and trough

Boulder North nsw022 6 Transverse Bar and Rip

Boulder South nsw023 5 Reflective

Skennars Head Rock Platforms nsw023RP 6* Rock Platform

Sharpes nsw024 6 Transverse Bar and Rip

Flat Rocks nsw024RP 6* Rock Platform

Angels North nsw025 6 Transverse Bar and Rip

Angels South nsw026 6 Transverse Bar and Rip

Black Head nsw026RP 6* Rock Platform

Shelly nsw027 6 Transverse Bar and Rip

Ballina Head nsw027RP 6* Rock Platform

Lighthouse nsw028 6 Transverse Bar and Rip

South Ballina nsw029A 6 Transverse Bar and Rip

Beswicks nsw029B 6 Transverse Bar and Rip

Robins nsw029C 6 Transverse Bar and Rip

Patches nsw029D 6 Transverse Bar and Rip

*Rocky coast & rock platform ratings Currently there is no method of rating the hazardousness of the rocky coast, in an equivalent manner to the ABSAMP beach hazard rating system for sandy beaches. Research is currently underway; Dr. David Kennedy has utilised a grant from Melbourne University to pilot the methods for the development of a risk classification study on rocky coasts. This research has now received funding under an Australian Research Council linkage grant. Prof. Colin Woodroffe (University of Wollongong) has recently presented the methodology for this project at the NSW Coastal Conference in Kiama (November, 2012). As an interim method of providing an indication of the hazardousness of rock platforms the ABSAMP beach hazard ratings for the beaches on either side of the each rock platform have been averaged. Since the beaches on either side of a rock platform would be exposed to similar prevailing and modal wind, wave and weather conditions and these sandy beaches have a recognised and accepted method of rating the associated hazardousness taking the average of the beaches bordering a rock platform will provide an indication as to the potential hazard associated with the modal conditions affecting the rock platform. It is a limitation of the report that there is no available method of calculating the specific hazard rating of a rock platform. However, in order to allow the risk based prioritisation calculations used in this report to be processed an interim solution has been applied which takes into account the local conditions and geomorphology. Once the research being conducted by Dr. David Kennedy and Prof. Colin Woodroffe is completed then these calculations should be revisited.


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Treatment Option 5.1 Research currently being conducted by the University of Melbourne, University of Wollongong and Surf Life Saving Australia into a rocky coast classification model and hazard rating system for rocky coast should be commended and supported. Once this research is completed the calculations related to rocky coasts in this report should be reviewed

2.8 ABSAMP Beach Type Characteristic Overview and Hazards

Each location and their beach characteristics and associated hazards are as follows: Transverse Bar and Rip o Boulder North o Sharpes o Angels North o Angels South o Shelly Beach o Lighthouse Beach o South Ballina o Beswicks o Robins o Patches Figure 2.8.1: Transverse Bar & Rip

Transverse bar and rip type is the most common and extensive of Australia’s wave-dominated beach types. They occur primarily on beaches composed of fine to medium sand (0.3 mm) and exposed to waves averaging 1.5m. This beach type received its name from the fact that the bars are transverse or perpendicular to and attached to the beach, separated by deeper rip channels. Waves tend to break more on the bars and move shoreward as wave bores. This water flows both directly into the adjacent rip channel and, closer to the beach, into the rip feeder channels located at the base of the beach. The water in the rip feeders converge and

return seaward as a strong rip current. Longshore Bar & Trough o Seven Mile / Lennox Head Figure 2.8.2: Longshore Bar and Trough

Longshore bar and trough beaches are characterised by waves averaging 1.5-2 m, which break over a near continuous longshore bar located between 100-150 m seaward of the beach, with a 50-100 m wide, 2-3 m deep longshore trough separating it from the beach. The beach face is straight alongshore and depending on sand size may have a low tide terrace (fine sand) and/or a reflective beach with beach cusps (medium sand). The bar is usually crossed by rips every 250-500 m. The deep trough and the presence rips make this a particularly hazardous swimming beach. In Australia longshore bar and trough more commonly occurs as an outer second bar.


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Reflective o Boulder South Figure 2.8.2: Reflective

Reflective sandy beaches lie at the lower energy end of the wave-dominated beach spectrum. They are characterised by relatively steep, narrow beaches usually composed of coarser sand (0.4 mm). On the open Australian coast, sandy beaches require waves to be less than 0.5 m to be reflective. For this reason they are also found inside the entrance to bays, at the lower energy end of some ocean beaches and in lee of the reefs and islets that front many beaches. Reflective beaches are Australia's most common beach type occurring in every state though they are more common around the southern half of the

continent. Reflective beach morphology consists of the steeper, narrow beach and swash zone, with beach cusps commonly present in the upper high tide swash zone. They have no bar or surf zone as waves move unbroken to the shore, where they collapse or surge up the beach face. Rock Platform o Skennars Head o Flat Rocks o Black Head o Ballina Head

2.9 Facility Visitation Rates (FVR)

The Facility Visitation Rate (FVR) is a term, which has been developed to provide a quantitative assessment that can be used to determine the most appropriate signage schedule for a facility (venue or location). The FVR is calculated using data collected during the assessment process and includes (peak period) site population use, and frequency of use. As the FVR calculation is used to determine aquatic recreational warning signage requirements the figures used are those of the peak period of beach usage. The following calculation is derived using: 1. Stakeholder observation, consultation and feedback relative to the table values outlined, 2. Historical statistical data, and, 3. Utilisation of the Facility Visitation Rate (FVR) formula, where:

Facility Visitation Rate = (Development rating x Population) + Frequency Facility Visitation Rating (FVR) Reference Tables Table 2.9.1: Typical Development and Natural Hazards Rating for Reserves – non beach environments

Rating Development Natural Hazards

1 Virginal bush, cleared land, no infrastructure No hazardous features

2 Cleared land, static infrastructure e.g. grass area with tables and chairs, toilet block, lookout

Sloping ground; no natural water; walking track around reserve

3 Cleared land with mobile infrastructure e.g. grassed area with play equipment, cycle way, market, leash free

dog areas

Reserve contains natural waterway that runs during wet weather, drops less

than 1 metre

4 Land manager owned infrastructure with no artificial lighting e.g. golf course, football field, recreational

ground, caravan park

Creeks, ponds and ledges between 1 metre and 3 metres

5 Extensively developed infrastructure with artificial lighting e.g. sporting complex, artificially lit courts

Contains rivers, dams and cliffs greater than 3 metres


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Table 2.9.2: Typical development ratings for beaches.

Rating Development

1 Beach hazard rating 1 and 2





Table 2.9.3: A typical population use within a facility provided by land manager. It is important that the land manager's table reflects as accurately as possible its actual situation.

Rating Population Use

1 Less than 5 people at a time

2 5 to 50 people at a time



5 Greater than 500 people at a time

Table 2.9.4: Suggested Frequency of use rating for a Facility

Rating Frequency of Use

1 An annual activity or event in held at the facility

2 An activity event takes place in the facility on a monthly basis

3 An activity event takes place in the facility on a weekly basis

4 An activity event takes place in the facility on a daily basis

5 The facility is in continuous use for the majority of the day

Table 2.8.1: Facility Visitation Rates – assessed locations within Ballina LGA

LOCATION NAME DEVELOPMENT RATING

x POPULATION + FREQUENCY = FVR

Seven Mile/Lennox Head 3 X 4 + 4 = 16

Boulder North 3 X 2 + 3 = 9

Boulder South 3 X 2 + 2 = 8

Skennars Head Rock Platform 3 X 2 + 3 = 9

Sharpes 3 X 3 + 3 = 12

Flat Rocks 3 X 3 + 3 = 12

Angels North 3 X 3 + 3 = 12

Angels South 3 X 3 + 3 = 12

Black Head 3 X 2 + 3 = 9

Shelly 3 X 4 + 4 = 16

Ballina Head 3 X 2 + 3 = 9

Lighthouse 3 X 4 + 4 = 16

South Ballina 3 X 4 + 3 = 15

Beswicks 3 X 2 + 2 = 8

Robins 3 X 2 + 2 = 8

Patches 3 X 2 + 2 = 8

Given the FVR scores, shown in the above table, listed below is an outline of the most appropriate sign characteristics pertinent to each location:


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FVR Score between 7 and 10 Locations include: o Boulder North o Boulder South o Skennars Head Rock Platform o Black Head o Ballina Head o Beswicks o Robins o Patches

This score would generally indicate that where access cannot be controlled, entrances to the beach provided by land managers have signage and spaced no greater than 500 metres apart around the beach perimeter. Additionally the signage should contain the following: o The name of the facility o A general warning message o All ordinances that apply to the facility should appear on the sign as prohibition pictograms o All potential hazards identified within the facility that have a risk rating of HIGH should appear on the sign

as warning symbols. If no highs then the top hazard should appear o Any information symbols relevant to the facility FVR Score between 11 and 15 Locations include: o Sharpes o Flat Rocks o Angels North o Angels South o South Ballina This score would generally indicate that where access cannot be controlled, entrances to the beach provided by land managers have signage and spaced no greater than 500 metres apart around the beach perimeter. Additionally the signage should contain the following: o The name of the facility o A general warning message o All ordinances that apply to the facility should appear on the sign as prohibition pictograms o All potential hazards identified within the facility that have a risk rating of HIGH should appear on the sign

as warning symbols. If no highs then the top two hazards should appear o Any information symbols relevant to the facility FVR Score between 16 and 20 Locations include: o Seven Mile/Lennox Head o Shelly o Lighthouse This score would generally indicate that where access cannot be controlled, entrances to the beach provided by land managers have signage and spaced no greater than 250 metres apart around the beach perimeter.

o The name of the facility o A general warning message o All ordinances that apply to the facility should appear on the sign as prohibition pictograms o All potential hazards identified within the facility that have a risk rating of HIGH should appear on the sign

as warning symbols. If no highs then the top three hazards should appear o Any information symbols relevant to the facility


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FVR Score between 21 and 26 o No assessed area scored within this range

This score would generally indicate that where access cannot be controlled, entrances to the beach provided by land managers have signage and spaced no greater than 100 metres apart around the beach perimeter. Additionally the signage should contain the following: o The name of the facility o A general warning message o All ordinances that apply to the facility should appear on the sign as prohibition pictograms o All potential hazards identified within the facility that have a risk rating of HIGH should appear on the sign

as warning symbols. If no highs then the top four hazards should appear o Any information symbols relevant to the facility

2.10 Facilities

Facilities in the coastal risk management process are any item of infrastructure which is situated close to the beach/access points. These include but are not limited to: o Picnic areas o BBQ’s o Playgrounds o Benches o Showers/water taps o Amenities o Car parks o Caravan parks o Art infrastructure o Rubbish bins Why do we record facilities? Facilities are recorded because it is important for the Land manager to recognise that by providing the above facilities it is expected that there will be an increase in people visiting these areas. This increase can correlate to the likelihood of a risk occurring in a coastal environment. Treatment plans identified in the report should be implemented in these areas to reduce the risk of a particular event occurring. Facilities as well as other local attractions are included in risk management and while these facilities or local attractions may, in isolation, increase the likelihood of a particular risk occurring, they may be offset by other factors such as the type of visitor who is going to a particular location. All factors relating to a risk are assessed as a whole and not in isolation when determining the level of risk. It is the level of risk and not the type of facilities (in isolation to other factors) that is used when determining if a risk treatment is required A breakdown of facilities at the assessed locations within the Ballina LGA can be requested by the Land Manager if required.


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2.11 Beach Usage and Incident Statistics

Beach statistics The following statistics have been recorded by the lifesaving/lifeguard services operating within Ballina LGA. All figures are the combined statistics from the last 3 patrolling seasons (2009/10, 2010/11, 2011/12). Statistics have been sourced from the Surf Life Saving internal management database known as ‘SurfGuard’. Table 2.11.1: Surf Life Saving Club statistics for 2009 to 2012 (SurfGuard, 2013)

Surf Life Saving Clubs Attendance Rescues Preventions First Aid

Seven Mile/Lennox Head 76906 54 2847 319

Ballina Lismore & Lighthouse 57614 148 3042 162

Totals 134520 202 5889 481

Table 2.11.2: Australian Lifeguard Service statistics for 2009 to 2012 (SurfGuard, 2013)

Australian Lifeguard Service Attendance Rescues Preventions First Aid

Seven Mile/Lennox Head 161525 30 9133 262

Sharpes 45104 21 4650 345

Shelly 42945 30 4030 112

Lighthouse 80694 42 8109 122

South Ballina 3896 0 775 7

Totals 334164 123 26697 848

Table 2.11.3: Combined patrolling statistics for 2009 to 2012 (SurfGuard, 2013)

Combined Attendance (Lifesavers & Lifeguards)

Location Attendance Patrolled Days

Average Attendance per Day

Lennox Head 238,431 643 370

Sharpes 45104 176 256

Shelly 42945 159 270

Lighthouse 138,308 590 234

South Ballina 3896 37 105

The above tables demonstrate: o Seven Mile/Lennox Head has the highest attendance, however more rescues occur at Lighthouse beach

o Sharpes had the highest first aid cases

o Seven Mile/Lennox Head has the highest average attendance per day with 370 people. Population Statistics This table shows the population in the Ballina LGA is 39,645. Population over the last 10 years has stayed relatively the same with the population increase of approximately 2,500. Table 2.11.4: Ballina population data (ABS, 2011)

Ballina LGA – Population

Year Males Females Total

2011 19,039 20,606 39,645

2006 18,740 20,237 38,977

2001 18,065 19,153 37,218


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This table provides a breakdown of the population living in the coastal towns of the Ballina LGA (Australian Bureau of Statistics 2011). Table 2.11.5: Population living in coastal suburbs within the Ballina LGA (ABS, 2011)

Beach Suburb Population

Beach Suburb Population

Lennox Head 6,147

Skennars Head 1,194

East Ballina 5,320

Ballina 7,875

West Ballina 2,972

South Ballina 175

Empire Vale 395

Totals 24,078

Tourist Information The below information has been sourced from the ‘Destination NSW’ website. All statistics are the average four year totals to September 2011. Destination NSW breaks down the number of visitors into three categories and these include: 1. Domestic overnight travel 2. Domestic day trip travel 3. International overnight travel Table 2.11.6: Tourism data and visitor information for Ballina LGA (‘Destination NSW’, 2013)

Overall Tourist Figures (‘000)

Domestic Overnight 263

Domestic Day Trip 348

International Overnight 16 Domestic overnight travel Table 2.11.7: Domestic overnight travel data and visitor information for Ballina LGA (‘Destination NSW’, 2013)

Top 5 Activities (‘000) % NSW %

Eat out at restaurants 135 n/a 56.3

Visit Friends and Relatives 126 n/a 47.0

Go to the beach 88 n/a 22.4

General sight seeing 69 n/a 26.6

Pubs Clubs Discos etc. 67 n/a 22.0

Origin (‘000) % NSW %

Regional NSW 203 24.3 35.5

Sydney 204 24.4 26.6

Victoria 49 5.9 13.9

Queensland 316 37.8 13.3

ACT 35 4.2 4.2

Other Interstate 27 3.2 6.4

Top 5 Accommodation (‘000) % NSW%

Friends or relatives 364 43.9 39.1

Hotel, resort, motel 219 26.4 23.4

Caravan Park, Camping 143 17.2 12.4

Rented 58 7.0 9.9

Own Property 17 2.0 3.9


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In summary, Ballina beaches are the third most popular attraction for domestic overnight travellers. 37.8% of these people live in Queensland and 43.9% are most likely to stay with friends or relatives. The age of visitors is largely the same over the 35 + years bracket. Day Trip Travel Table 2.11.8: Day trip travel data and visitor information for Ballina LGA (‘Destination NSW’, 2013)

In summary, the majority of day trippers eat out at restaurants rather than going to the beach. Going to the beach is the fourth most popular activity. The highest age bracket is the 35 to 44 and the 65 + age group. The large majority of visitors come from the Northern Rivers region. International Overnight Travel Table 2.11.9: International overnight travel data and visitor information for Ballina LGA (‘Destination NSW’, 2013)

Age Group (‘000) % NSW %

15 to 24 years 20 7.7 14.5

25 to 34 years 34 12.8 14.0

35 to 44 years 54 20.7 21.5

45 to 54 years 53 20.3 19.0

55 to 64 years 48 18.4 16.6

65 years and over 53 20.2 14.4

Top 5 Activities (‘000) % NSW %

Eat out at restaurants 142 40.8 43.9

Visit friends and relatives 125 36.0 34.6

Go Shopping for Pleasure 101 29.0 21.3

Go to the beach 73 20.9 10.2

General sight seeing 55 15.8 16.8


15 to 24 years 32 9.2 14.4

25 to 34 years 59 16.8 13.4

35 to 44 years 71 20.5 19.6

45 to 54 years 56 16.0 18.1

55 to 64 years 58 16.7 16.8


Origin (‘000) % NSW %

Northern Rivers 208 59.7 4.3

Brisbane 42 12.1 1.6

Gold Coast 39 11.3 1.6

Sydney 29 8.2 42.0

Mid North Coast 15 4.2 6.9

Top 5 origin markets (‘000) % NSW %

United Kingdom 4 24.9 13.3

New Zealand 3 19.1 13.3

Germany 2 10.3 3.8

USA 1 7.3 10.6

Canada 1 3.8 2.9


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The highest number of international tourist’s holiday from the United Kingdom followed by New Zealand. The 15 to 24 and 25 to 34 are the highest age brackets. The majority stay at friends or relatives. Drowning Incidents Below are the 12 drowning incidents that have occurred in the Ballina LGA from 1 July 2004 to 30 June 2013. Table 2.11.10: Drowning incidents within Ballina LGA from 2004 to 2012 (SLSA Incident Reporting Database, 2013)

Coastal Drowning Incidents - Ballina Local Government Area

Date Location Time Day Month Age &

Gender Nationality Residential Status Activity

28/09/2004 Shelly Beach 13:30 Tue Sep 18 - M Australian Australian Resident Swimming

9/03/2005 Seven Mile Beach 12:45 Wed Mar 71 - M Netherlands Australian Resident Swimming

9/03/2005 Seven Mile Beach 12:45 Wed Mar 80 - F Netherlands International Tourist Swimming

23/02/2006 Seven Mile Beach

11:30 Sat Feb

27 - M Canadian International Tourist Swimming

28/01/2007 Seven Mile Beach 16:30 Sun Jan 34 - M Germany International Tourist Surf craft

26/12/2009 Lighthouse Beach

11:45 Sat Dec 54 - M Australian Australian Resident Swimming

19/01/2010 South Ballina

18:30 Tue Jan 42 - M Greek Australian Resident Swimming

19/01/2010 South Ballina

18:30 Tue Jan 44 - F Greek Australian Resident Swimming

13/07/2010 Richmond River

14:00 Tue Jul 63 - M Australian Australian Resident Boating

21/01/2012 Richmond River

16:30 Sat Jan 35 - M Korean Australian Resident Swimming

10/10/2012 Flat Rock,

Ballina 12:30 Wed October 40/M Australian Australian Resident

Surfcraft (non powered)

25/12/2012 Shelly Ballina

7:35 Tue December M Asian Australian Resident Rock Fishing

Notes to table: o 70% of incidents occurred during the months of December, January, February and March

o The age bracket of 30+ years contributed to 70% of all incidents o 70% of incidents occurred in the afternoon after 1200hrs o 60% of incidents occurred from those people with a non Anglo-Saxon background/international tourist


15 to 24 years 4 21.8 18.8

25 to 34 years 4 23.3 24.8

35 to 44 years 2 13.1 17.4

45 to 54 years 2 11.0 17.2

55 to 64 years 3 18.4 14.8


Top 3 Accommodation (‘000) % NSW %

Friends or relatives 45 40.0 27.5

Backpacker / hostel 11 10.0 6.9

Homestay 13 11.3 5.0


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While data surrounding incident location/time has been referenced, specific environmental conditions at the time of incidents have not been adequately assessed to identify causal factors and specific trends. This information exists and is held in raw format by the Bureau of Meteorology (BOM), including wave height/direction, tides, wind speed/direction, temperature, and visibility. Review and assessment of this data, may identify environmental trends which may encourage/discourage recreational activities, impact hazard/risk perception and risk taking behaviour, identify higher-risk conditions for types of localities and specific ‘black spot’ locations themselves. Improvements to Dangerous Surf Warnings and education/awareness programs may be improved as a result. Emergency Callouts There have been 52 emergency callouts through the Surf Rescue Emergency Response System (SRERS) from 1 January 2008 to 30 June 2012 in the Ballina LGA. The SRERS involves callout teams (lifesavers/lifeguards), including ‘after hours’ responding to emergencies that have been tasked by the Police. Of the 52 callouts, 30 patients have been rescued.

Note: The data below does not incorporate incidents from other emergency services where the SRERS may not have been

activated e.g. Water Police, Ambulance and Marine Rescue data.

Table 2.11.11: SRERS call outs within Ballina LGA from 2004 to 2012 (SLSA Incident Reporting Database, 2013)

Surf Rescue Emergency Response System – Ballina Local Government Area Date Location Month Season Day Time Activity Outcome

23/05/2008 Richmond River Mouth May Autumn Fri 14:46 Surf Craft 1 patient rescued

14/06/2008 Flat Rock June Winter Sat 16:14 Surf Craft No Further action

14/07/2008 Lennox Point July Winter Mon 14:58 Self Harm Coastal Death

11/11/2008 Richmond River Mouth Nov Spring Tue 15:22 Swimming Stood down

4/01/2009 Seven Mile Beach Jan Summer Sun 12:21 Swimming 1 patient rescued

11/01/2009 Seven Mile Beach Jan Summer Sun 18:42 Swimming 3 patients rescued

5/09/2009 Shelly Beach Sep Spring Sat 12:42 Swimming No Further Action

19/08/2009 Skennars Head Aug Winter Wed 8:38 Surf Craft 2 Patients Rescued

26/12/2009 Lighthouse Beach Dec Summer Sat 11:43 Swimming 1 Patient Deceased

19/01/2010 South Ballina Jan Summer Tue 18:58 Swimming 2 Patients Deceased

28/03/2010 Lighthouse Beach Mar Autumn Sun 17:46 Swimming No Further Action

5/04/2010 Flat Rock Apr Autumn Mon 10:43 Surf Craft No Further Action

15/08/2010 Seven Mile Beach Aug Winter Sun 14:50 Surf Craft No Further Action

22/10/2010 Boulders Beach Oct Spring Fri 16:27 Swimming 2 patients rescued

26/02/2011 Lighthouse Beach Feb Summer Sat 21:24 Swimming No Further Action

19/05/2011 Richmond River Mouth May Autumn Thu 13:43 Vessel No Further Action

4/06/2011 Richmond River Mouth Jun Winter Sat 15:36 Vessel 2 Patients Rescued

3/07/2011 Richmond River Mouth Jul Winter Sun 16:45 Vessel 1 Patient Rescued

13/07/2011 Lighthouse Beach Jul Winter Wed 12:22 Swimming 1 Patient Rescued

6/08/2011 Richmond River Mouth Aug Winter Sat 9:03 Surf Craft 3 Patients Rescued

9/08/2011 Richmond River Mouth Aug Winter Tue 18:50 Debris No Further Action

17/09/2011 Richmond River Mouth Sep Spring Sat 15:20 Vessel No Further Action

27/11/2011 Richmond River Mouth Nov Spring Sun 13:30 Vessel No Further Action

29/12/2011 Richmond River Mouth Dec Summer Thu 15:31 Vessel 4 Persons Rescued

16/01/2012 Richmond River Mouth Jan Summer Mon 15:18 Vessel 2 Patients Rescued

10/02/2012 Lighthouse Beach Feb Summer Fri 15:41 Surf Craft No Further Action


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Surf Rescue Emergency Response System – Ballina Local Government Area Date Location Month Season Day Time Activity Outcome

12/02/2012 Boulder Beach Feb Summer Sun 11:25 Rock fishing 1 Patient Rescued

20/03/2012 Lighthouse Beach Mar Summer Tue 18:56 Swimming No Further Action

1/04/2012 Sharpes Beach Apr Autumn Sun 17:00 Surf Craft 1 Patient Rescued

14/04/2012 Richmond River Mouth Apr Autumn Sat 7:15 Vessel 5 People Rescued

15/04/2012 Richmond River Mouth Apr Autumn Sun 8:26 Vessel 1 Person Rescued

5/06/2012 Lennox Point Jun Winter Tue 7:07 Surf Craft 1 Patient Found

18/08/2012 Ballina #N/A Winter Sat 14:36 SurfCraft (non powered)

Rescued

27/08/2012 Ballina Harbour Wall #N/A Winter Mon 16:00 Vessel No Further Action

10/09/2012 Lennox Headland #N/A Spring Mon 19:27 Suicide Rescued

26/09/2012 Richmond River, Ballina #N/A Spring Wed 9:18 Vessel No Further Action

13/10/2012 Lennox Head #N/A Spring Sat 10:57 Parachute/parasail No Further Action

13/10/2012 Prospect Bridge Ballina #N/A Spring Sat 12:33 Other No Further Action

26/10/2012 Seven Mile Beach, Lennox Head

#N/A Spring Fri 17:38 SurfCraft (non powered)

No Further Action

27/10/2012 Ballina #N/A Spring Sat 13:40 SurfCraft (non powered)

No Further Action

9/11/2012 Wardell Ballina #N/A Spring Fri 14:44 Other No Further Action

14/11/2012 Boulder Beach #N/A Spring Wed 16:56 Other No Further Action

15/11/2012 Ballina North Wall #N/A Spring Thu 19:56 Suicide/Self Harm No Further Action

4/12/2012 South Ballina #N/A Summer Tue 14:58 Swimming No Further Action

21/12/2012 Ballina Break Wall #N/A Summer Fri 18:57 Suicide/Self Harm Rescued

2/01/2013 Lighthouse Beach, Ballina #N/A Summer Wed 17:27 Suicide/Self Harm Rescued

26/01/2013 Ballina Break Wall #N/A Summer Sat 12:07 SurfCraft (non powered)

No Further Action

9/02/2013 Missingham Bridge Ballina #N/A Summer Sat 14:16 Parachute/parasail No Further Action

13/03/2013 Richmond River, Ballina #N/A Autumn Wed 18:30 Vessel No Further Action

31/03/2013 Flat Rock, Ballina March Autumn Sun 10:21 SurfCraft (non powered)

No Further Action

15/04/2013 Ballina Bar North Wall April Autumn Mon 1:58 Vessel Rescued

20/04/2013 Missingham Bridge Ballina April Autumn Sat 20:47 Vessel Other

Notes to table: o 42% of all incidents occur on the Richmond River Mouth where the Ballina Jet Boat can respond

o 29% of incidents occur in Summer, 23% in Winter, 21% in Autumn and 27% in Spring o Incidents are a result of a mixture of activities including swimming, surf craft, vessel, self-harm and rock

fishing o 77% of all incidents occur in the afternoon after 1200hrs Environmental Risk Factors (Variable) The nature of the coastal environment in the assessment area, combined with recreational activity types and locations has identified specific location ‘black spots’ for emergency incidents and drowning deaths. While data surrounding incident location/time has been referenced, specific environmental conditions at the time of incidents have not been adequately assessed to identify causal factors and specific trends.


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This information exists and is held in raw format by the Bureau of Meteorology (BOM), including wave height/direction, tides, wind speed/direction, temperature, and visibility. Review and assessment of this data, may identify environmental trends which may encourage/discourage recreational activities, impact hazard/risk perception and risk taking behaviour, identify higher-risk conditions for types of localities and specific ‘black spot’ locations themselves. Improvements to Dangerous Surf Warnings and education/awareness programs may be improved as a result.

Treatment Options 1.1 & 2.1 Beach usage and incident data (e.g. drowning incidents, emergency callouts, lifesaving and lifeguards statistics) should be used when making informed decisions about the implementation of risk treatments for coastal safety.

Treatment Option 3.1 A review be commissioned to analyse the historical environmental conditions at the time of recorded drowning deaths where the Bureau of Meteorology is able to supply data. Such a report should identify the relevant trends and causal factors.


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2.12 Communication and Consultation

Communicating with stakeholders about risk perception and tolerance is the heart of the risk management process. Consultation with a number of stakeholders was formally undertaken to ensure Land Managers and other key stakeholders were given the opportunity to provide local input and knowledge i.e. validation of strategies in place, issues in regards to risk management and opportunities that may exist. Local stakeholder meetings were conducted with: o Jillian Pratten, Manager Open Spaces & Reserves, Ballina Shire Council o Mark Pittavino, Park Manager – Richmond River Nature Reserve, NPWS o Ballina Local Emergency Management Committee o Bernard and Rikki Grinberg, Ballina Beach Village and Wilderness Camping Park o Scott McCartney, Northern Region Lifeguard Supervisor, Australian Lifeguard Service o Ben Redman, Director of Lifesaving, Surf Life Saving Far North Coast o Jimmy Keough, Emergency Coordinator, Surf Life Saving Far North Coast The consultation process has been aided in the following ways: o Open community forums and workshops o Print, Radio and Television media announcements of workshops and consultation o Written and verbal follow ups post workshops o Use of social media - Twitter o Web based surveys o Web based information submissions o On-site communication and distribution of flyers o On-site one-to-one surveying o Draft reports circulated to the NSW Water Safety Advisory Council Figure 2.12.1: Project Blueprint Flyer Beach Safety Committee One way to discuss coastal safety issues in the Ballina LGA is to develop a local beach safety liaison committee. This committee would be attended with a representative from the Ballina Shire Council, the NPWS, the Lifeguard service provider and the local surf life saving clubs. This committee has the opportunity to be an effective forum which raises coastal safety issues and implements drowning prevention strategies in the Ballina LGA. It is recommended that the committee have a standing item on all future meeting agendas titled ‘coastal risk management – status and issues’, or similar. Recommendations found in this report can be addressed in this agenda item.


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Consultation Workshop A public forum was held on Saturday 6 April, 2013 at the Richmond River Room, Ballina to discuss drowning prevention. This public forum was advertised in local print media and through pre-identified stakeholders (via email and letter). Public forums were open to any member of the public such as surf lifesavers, lifeguards, fishing groups, surfing associations, emergency services personnel etc. The public forum was attended by the following: o Peter Mair, Regional Emergency Management Officer o Jillian Pratten, Ballina Shire Council o Debbie Pawsey, Far North Coast Branch, Surf Life Saving o Scott McCartney, North Coast Lifeguard Supervisor, Australian Lifeguard Service o Barry Regan, Member of public Consultation Survey The consultation process has also involved the introduction of an online survey which has been useful to capture input from a wide range of key stakeholders, at local/regional level. Summary results will be published in the final report. Survey 1 The first survey was sent to both internal and external stakeholders. Questions focused on drowning identification and prevention. Survey Questions: o In your opinion, what are the (top three) factors contributing to drowning / coastal related incidents at this

location? o In your opinion, are there any particular risk factors at this location which may contribute to drowning at

this location? o If you believe age to be a contributing factor to drowning at this location, which age groups are most at

risk? o If you believe gender to be a contributing factor to drowning at this location, which gender is most at risk? o If you believe socio economic status to be a contributing factor to drowning at this location, which socio

economic groups are most at risk? o If you believe ethnicity to be a contributing factor to drowning at this location, which ethnic groups are

most at risk? o If you believe residency to be a contributing factor to drowning at this location, which residential groups

are most at risk? o Are there particular activities or types of behaviour that people engage in that you think places them at a

greater risk of drowning or other coastal related injury? o Are there any physical attributes or other factors relevant to the area that you think may place people at

greater risk of drowning or water related injury? (e.g. beach characteristics, parking/access points, tourism facilities on beach etc.)

o What are the current key strategies (top three) addressing the issue of drowning prevention / coastal safety? Please evaluate the effectiveness of these current strategies at this location?

o In your opinion, what key strategies (top 3) do you think should be implemented to address the issue of drowning / coastal related incidents at this location?


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Survey 2 The second survey was sent to internal stakeholders only e.g. lifesavers and lifeguards. Questions focused on visitation numbers and incidents. Survey Questions: o To the best of your knowledge, what would be the maximum number of people at the location (on the

beach/rock platform/in water) at any one time o To the best of your knowledge, how often would the visitation numbers identified in the previous question

occur at the location? o In your opinion, which of the following risk groups are present at the location? o To the best of your knowledge is there a lifesaving service at this location (i.e. Council Lifeguards or

Volunteer Surf Life Saving Club) o To the best of your knowledge, how many incidents have occurred at this location in the past 5 years? o To the best of your knowledge, how many incidents have occurred at this location in the past 12 months? o How quickly can an emergency or lifesaving service respond to an emergency incident at this location (in

minutes)?

Treatment Option 1.2, 2.2 & 4.1 There is the opportunity for a local beach safety liaison committee to be developed. This committee would be an effective forum which raises coastal safety issues and implements drowning prevention strategies in the Ballina Local Government Area. It is recommended that the committee have a standing item on all future meeting agendas titled ‘coastal risk management – status and issues’, or similar. Recommendations found in this report can be addressed in this agenda item.


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3. Risk Assessment Findings

3.1 Action Planning Priority (Gross Risk)

3.1.1 Action Planning Priority Index

The action planning priority index can be viewed as the inherent risk score for a beach. The index seeks to identify the risks associated with the broader coastal environment under assessment, rather than specific hazards and risks at a particular location. The majority of information detailed in this section of the report will be identified through pre-existing data (where available), with new data sourced where gaps are present or the data is not reliable.

The total score for the Action Planning Priority Index, displayed on pages 42 & 43, is intended to be used for

the purpose of prioritisation risk mitigation strategies provided for consideration in this report. For the

purpose of Section 3 of this report, the individual components of the Action Planning Priority Index should not

be considered in isolation from the total score for the Action Planning Priority Index. The information is based on modal data for peak visitation during the busiest season(s). The action planning priority index uses the following risk identification information: 1. Australian Beach Safety & Aquatic Management Program Rating (ABSAMP Rating) 2. Local Population Rating (LPR) 3. Human/Activity Interaction Rating (HAIR) 4. Access Rating (AR)


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3.1.2 Australian Beach Safety & Management Program Rating (ABSAMP Rating)

Table 3.1.2.1: ABSAMP and Indicative ratings applied to assessed locations

Location Name ABSAMP no. ABSAMP Rating ABSAMP type

Seven Mile/Lennox Head nsw021 6 Longshore Bar & Trough

Boulder North nsw022 6 Transverse Bar and Rip

Boulder South nsw023 5 Transverse Bar and Rip

Skennars Head Rock Platforms nsw023RP 6* Rock platform

Sharpes nsw024 6 Transverse Bar and Rip

Flat Rocks nsw024RP 6* Rock platform

Angels North nsw025 6 Transverse Bar and Rip

Angels South nsw026 6 Transverse Bar and Rip

Black Head nsw026RP 6* Rock platform

Shelly nsw027 6 Transverse Bar and Rip

Ballina Head nsw027RP 6* Rock platform

Lighthouse nsw028 6 Transverse Bar and Rip

South Ballina nsw029A 6 Transverse Bar and Rip

Beswicks nsw029B 6 Transverse Bar and Rip

Robins nsw029C 6 Transverse Bar and Rip

Patches nsw029D 6 Transverse Bar and Rip

*Rocky coast & rock platform ratings Currently there is no method of rating the hazardousness of the rocky coast, in an equivalent manner to the ABSAMP beach hazard rating system for sandy beaches. Research is currently underway; Dr. David Kennedy has utilised a grant from Melbourne University to pilot the methods for the development of a risk classification study on rocky coasts. This research has now received funding under an Australian Research Council linkage grant. Prof. Colin Woodroffe (University of Wollongong) has recently presented the methodology for this project at the NSW Coastal Conference in Kiama (November, 2012). As an interim method of providing an indication of the hazardousness of rock platforms the ABSAMP beach hazard ratings for the beaches on either side of the each rock platform have been averaged. Since the beaches on either side of a rock platform would be exposed to similar prevailing and modal wind, wave and weather conditions and these sandy beaches have a recognised and accepted method of rating the associated hazardousness taking the average of the beaches bordering a rock platform will provide an indication as to the potential hazard associated with the modal conditions affecting the rock platform. It is a limitation of the report that there is no available method of calculating the specific hazard rating of a rock platform. However, in order to allow the risk based prioritisation calculations used in this report to be processed an interim solution has been applied which takes into account the local conditions and geomorphology. Once the research being conducted by Dr. David Kennedy and Prof. Colin Woodroffe is completed then these calculations should be revisited.


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3.1.3 Local Population Rating

The Local Population Rating (LPR) expands on the information obtained from the Facility Visitation Rating. This additional population rating identifies the population of residents and/or non-residents located within 2km’s of a coastal location under assessment. The highest figure (resident or non-resident) will be recorded. Table 3.1.3.1: Local population rating descriptors

Table 3.1.3.2: Local population ratings applied to assessed locations

Population Rating Qualifying Description (all staying/living within 2km of beach)

1 < 50 residents and/or < 20 non-residents (domestic or overseas tourists)

2 50 - 250 residents and/or 21 - 100 non-residents (domestic or overseas tourists)

3 250 - 1000 residents and/or 100 – 500 non-residents (domestic or overseas tourists)

4 1000 – 2500 residents and/or 500 – 1000 non-residents (domestic or overseas tourists)

5 2500 + residents and/or 1000 non-residents (domestic or overseas tourists)

Location LPR Total

Seven Mile/Lennox Head 5

Boulder North 3

Boulder South 3

Skennars Head Rock Platforms 3

Sharpes 3

Flat Rocks 4

Angels North 5

Angels South 5

Black Head 5

Shelly 5

Ballina Head 5

Lighthouse 5

South Ballina 3

Beswicks 1

Robins 1

Patches 1


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3.1.4 Human/Activity Interaction Rating

The Human/Activity Interaction Rating (HAIR) identifies any conflicts present at the coastal environment between the number of people and activities taking place. Activities include both those in the water and those on the beach.

Table 3.1.4.1: Human/Activity Interaction descriptors.

Population (in-water)

Conflicting activities Population (on beach)

Conflicting activities

100+ 5 Persistent and dangerous 5 1000+ 5 Persistent and dangerous 5

75-100 4 Persistent 4 750-1000 4 Persistent 4

50-75 3 Regular 3 500-750 3 Regular 3

25-50 2 Isolated conflicts 2 250-500 2 Isolated conflicts 2

1-25 1 No conflicts reported 1 1-250 1 No conflicts reported 1

Table 3.1.4.2: Human/Activity Interaction ratings applied to assessed locations.

Location Population (in water)

Conflict Population (on beach)

Conflict HAI Total

Seven Mile/Lennox Head 5 3 2 3 13

Boulder North 1 2 1 2 6

Boulder South 1 2 1 2 6

Skennars Head Rock Platforms 1 2 1 2 6

Sharpes 5 2 2 2 11

Flat Rocks 2 2 1 2 7

Angels North 2 2 1 2 7

Angels South 3 2 1 2 8

Black Head 1 2 1 2 6

Shelly 5 3 2 2 12

Ballina Head 2 2 1 2 7

Lighthouse 5 3 2 2 12

South Ballina 3 3 1 2 9

Beswicks 1 2 1 2 6

Robins 1 2 1 2 6

Patches 2 2 1 2 7


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3.1.5 Access Rating

Beaches or coastal environments that have increased accessibility (i.e. near major roads, cities, public transport, car parks, boat ramps, maintained access paths etc) increase the likelihood of users at that beach. This directly increases the level of risk of drowning and or injury.

Table 3.1.5.1: Access rating descriptors

Table 3.1.5.2: Access ratings applied to assessed locations.

Access Rating Qualifying Description

1 No identifiable access via road or track, no facilities, car parking or obvious access points

2 Access via un-maintained track with no facilities and/or via water access

3 Access via any form of track or walkway (either maintained or un-maintained) AND any provision of facilities or services including (but not limited to) public transport, shower,

public toilet, payphone, kiosk, significant roadway, parking

4 Access via maintained tracks with clearly identified parking area AND/OR provision of basic facilities (i.e. public toilets, public shower/ wash down area) AND/OR within 10km

of moderate sized town or city (population greater than 5,000)

5 Clearly evident, marked or signposted and maintained access points AND/OR within 10km of major town or city (population greater than 25,000) AND / OR car parking for 50 or more vehicles/boat trailers. Public transport provided within 250m of a beach access

point

Location Access Rating

Seven Mile/Lennox Head 4

Boulder North 3

Boulder South 3

Skennars Head Rock Platforms 2

Sharpes 3

Flat Rocks 3

Angels North 3

Angels South 3

Black Head 3

Shelly 4

Ballina Head 2

Lighthouse 4

South Ballina 3

Beswicks 2

Robins 2

Patches 3


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3.1.6 Action Planning Priority Score

The action planning priority score provides an indicator for the overall level of risk of the location. The scores

range from 0 to 60. These scores can be used to prioritise the order in which risk treatments described in the

next section of this report are implemented.

Table 3.1.6.1: Summary of action planning priority calculations for each assessed location.

Location

AMSAMP

X 2 (Out of 20)

Population Support

X 2 (Out of 10)

Human Activity/

Interaction (Out of 20)

Access

X 2 (Out of 10)

Total Score

(Out of 60)

Seven Mile/Lennox Head 12 10 13 8 43

Boulder North 12 6 6 6 30

Boulder South 10 6 6 6 28

Skennars Head Rock Platforms

12 6 6 4 28

Sharpes 12 6 11 6 35

Flat Rocks 12 8 7 6 33

Angels North 12 10 7 6 35

Angels South 12 10 8 6 36

Black Head 12 10 6 6 34

Shelly 12 10 12 8 42

Ballina Head 12 10 7 4 33

Lighthouse 12 10 12 8 42

South Ballina 12 6 9 6 33

Beswicks 12 2 6 4 24

Robins 12 2 6 4 24

Patches 12 2 7 6 27

Three beaches have an action planning priority score greater than 40. Scores of 41 or higher indicate a high overall level of risk. Where limited resources prohibit the implementation of all risk treatments recommended in this report, those beaches that have received a high action planning priority score should be treated first, then beaches with a medium and low score.

Table 3.1.6.2: Action Planning Priority scores for each location to assist in the prioritisation for risk mitigation

strategies identified in this report.

Priority

Priority location

Priority Action & Total Score

Comments

1

Seven Mile Beach/Lennox Head

43

High – this location should be considered as

a priority for implementation of identified

risk treatment options

2

Shelly

42

High – this location should be considered as

a priority for implementation of identified


2

Lighthouse

42

High – this location should be considered as a priority for implementation of identified


4

Angels South

36

Medium – this location should be considered

for implementation of identified risk

treatment options after locations rated as

high or as funding becomes available


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Priority

Priority location

Priority Action & Total Score

Comments

5

Sharpes

35





5

Angels North

35





7

Black Head

34





8

Flat Rocks

33





8

South Ballina

33





8

Ballina Head

33





11

Boulder North

30





12

Boulder South

28

Low – this location should be considered for

implementation of identified risk treatment

options after locations rated as medium or

as funding becomes available

12

Skennars Head Rock

Platform

28

Low – this location should be considered for

implementation of identified risk treatment

options after locations rated as medium or


14

Patches

27

Low – this location should be considered for implementation of identified risk treatment options after locations rated as medium or


15

Beswicks

24



15

Robins

24



Key to Action Planning Priority

High 41+ Medium 31-40 Low 21-30 Very Low 0-20

Treatment Options 1.3 & 2.3 Treatment options in this report should be implemented using a staged/prioritisation approach, based on evidence.


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3.2 Overview of Principal Risk Treatments

3.2.1 Introduction

There are a range of risk treatment options that can be considered in the context of coastal risk management. The selection of the most appropriate option involves balancing the financial, social and environmental impacts of implementing each against the benefits derived from each. These may include any combination of the following: o Spread (share) risk – insurance o Engineer (structural and technological) risk treatment – include modified practices o Regulatory and institutional – change through revised regulations and planning o Avoid – isolate the risk, move people away o Research to better understand o Educate and inform stakeholders

3.2.2 Hierarchy of Risk Treatments (Controls)

In determining the most appropriate and cost effective option, it is important to consider the hierarchy of risk treatments (controls). The hierarchy is a sequence of options which offer a number of ways to approach the hazard control process. o Hard controls deal with the tangible such as:

Eliminate the hazard which in a coastal context is often difficult to achieve Isolate the hazard which in a coastal context can be difficult due to the dynamic nature of

environmental and weather conditions Use engineering controls such as design of access paths, installation of appropriate signage, and

revegetation Use administrative controls such as supervision, emergency action plans, other documented policies,

practices and procedures o Soft controls deal with human behaviour such as:

Use of effective leadership, management, trust, ethics, integrity, and building relationships Education

Outlined below are principal risk treatment solutions that expand upon those listed within the Risk Register and Treatment Plan in Appendix B. The solutions outlined endeavour to provide specific and detailed information relative to the beach locations; however due to the diverse nature of location characteristics, recommendations are at times mainly generic in nature. Land Managers should endeavour to adopt the most appropriate treatments specific to their organisations capabilities and in consultation with all relevant stakeholders. The principal risk treatments are as follows:


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3.2.3 Education and Awareness Programmes

Public education and awareness programmes are a fundamental component of any drowning prevention strategy, and target both the pre-arrival and early arrival periods (before a person/s are exposed to hazards). Key factors pertaining to effective education and awareness programmes include: o Consistency in safety messaging (elimination of confusing/unclear or dissipative information) o Consistency in the method of provision (ongoing information provided at regular locations/times) o Longevity in the provision of information (ongoing, not a one-off) During the course of the assessment and throughout the consultation process, Australian CoastSafe were made aware of various education and awareness programmes that are currently, or have been previously in place to educate and inform the public at a local level. These programmes as well as any other initiatives within and around the Ballina LGA should continue to be implemented and reviewed. Programmes include: o The distribution of surf safety flyers and brochures to coastal accommodation providers such as resorts,

hotels/motels, self-contained apartments and caravan parks. o Programmes encouraging local children to be active and providing the fundamentals of surf safety. o Water safety organisations providing surf education to schools when requested. o Local media and promotional opportunities to deliver key safety messages and dangerous surf warnings

through local print, radio and television networks. o RMS provides boating safety on the water and at boat ramps during interaction with boaters. Educational Messages Land Managers should continue to provide public education/awareness programmes which include standardised key safety messages and align/reference to peak coastal water safety agency websites such as: NSW Water Safety Advisory Council: http://www.watersafety.nsw.gov.au/beach-safety/ Together with the following referenced websites of the NSW Water Safety Advisory Council for beach safety: o BeachSafe: www.beachsafe.org.au o Rip Currents: www.ripcurrents.com.au Expanding on the distribution of public education resources to coastal accommodation providers, there is an opportunity to display posters which promote water safety at public amenity blocks located at coastal beaches. Similar types of posters have been used in other coastal councils. Coastal Accommodation The Ballina LGA is a popular destination for visitors and tourists. The distribution of surf safety collateral e.g. brochures, flyers, pamphlets etc. to all coastal accommodation providers in the LGA should be continued and expanded. Safety messages and information provided to tourists, visitors and migrants is integral for the education of this high target group. School Education Providing surf education in schools is a key component in addressing the drowning chain and has the opportunity to reach a key target group. Surf education is not a core responsibility for land managers however they are still encouraged to assist with school participation levels. This type of promotion could include joint media releases, website promotion or written communication from council to local schools. This type of education can include but is not limited to; class room based surf safety presentations, surf educational programmes at the beach and swim and survive programmes. A number of peak water safety agencies such as Surf Life Saving, AustSwim and Royal Life Saving are well placed to deliver these programmes. Commercial organisations also provide surf education services, such as Surf Educate Australia.

http://www.watersafety.nsw.gov.au/beach-safety/

http://www.beachsafe.org.au/

http://www.ripcurrents.com.au/


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Education Summary The following table outlines a range of education and awareness programmes that can be adopted by Land Managers within the Ballina LGA. Table 3.2.3.1 is not intended to be a comprehensive list of all education and awareness programmes available to Land Managers, it is intended to provide examples of a range of programmes that are available and delivered in within the context of coastal aquatic safety. Land Managers are not limited to the organisations listed in the table below, however they should ensure that any provider engaged to act on their behalf is adequately licensed, qualified and insured.

Table 3.2.3.1: Examples of education and awareness programmes

Programme Target audience Location Delivery (Who)

School based water safety programmes

Local primary and high school students

All locations Peak water safety agencies

Coastal Accommodation Network

Tourists, visitors and migrants (TVM)

All locations Peak water safety agencies

Local Media Residents and TVM All locations Local media outlets

Lear to Swim / Swim and Survive

Young Children All locations Royal Life Saving Society Australia

Lean to Swim All ages All Locations AUSTSWIM accredited swim schools

Nippers Local children All locations Surf Life Saving

Surfers Rescue 24/7 Local surfing associations All locations Surfing NSW

Kids Academy of Surf Local children All locations Surf Educate Australia

School surfing and surf education

Local children All locations Surf Educate Australia

Get hooked – it’s fun to fish

Schools All locations NSW DPI (Fisheries)

Rock fishing safety information

Rock fishers

Break wall and rock platforms

Peak water safety organisations

Boating safety information

Boaters Bar crossings Roads & Maritime Services/ Maritime Division

QR codes

The use of QR codes on signage and other infrastructure to link to location based beach safety information.

All locations Ballina Shire Council

Marine Education Centre Schools All locations Marine Teachers Association


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Examples of education collateral can be found below. Figure 3.2.3.3: Beach safety for tourists/migrants

Figure 3.2.3.4: Survive a rip current

Figure 3.2.3.5: Don’t put our life on the line

Figure 3.2.3.5: Swim between flags

Treatment Options 1.4 & 2.4 Existing education and awareness programmes within and around the Ballina Local Government Area should continue to be implemented and reviewed.

Treatment Options 1.5 & 2.5 Education and awareness programmes should include standardised key safety messages which are recognised by the aquatic industry (e.g. NSW Water Safety website, ‘watersafety.nsw.gov.au’).

Treatment Options 1.6 & 2.6 Display safety information (e.g. posters) which promotes key water safety messages, at amenity blocks and visitor information displays directly located around coastal beach access.

Treatment Option 1.7 Peak coastal water safety agencies currently provide surf education to local schools and community groups upon request. The Ballina Shire Council should work with these agencies to promote these programmes and encourage enhanced participation at a local level.

Treatment Option 3.2 Develop relationships with tourism agencies to expand on the coastal accommodation network program with the aim of distributing standardised surf safety collateral (e.g. brochures, flyers, and pamphlets) to all coastal accommodation providers in the Ballina Local Government Area.


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3.2.4 Safety Signage

Safety Signage is a fundamental component of any drowning prevention strategy and targets the in-transit and on-arrival periods pertaining to a person/s arriving at a hazardous location. Key factors related to effective safety signage includes: o a risk assessment process used in the identification of priority information to display o alignment to Australian Standards for signage content (ASNZ2416:2010) o consistency in signage layout/display (National Aquatic and Recreational Signage Style Manual, 3rd

Edition, July 2006’) o consistency in the appropriate positioning of signage, to optimal exposure to the most members of the

public, prior to arriving in a hazardous location, with the minimum number of signs o a consistent process of signage maintenance as part of the land managers annual planning It is important to note that at most locations, an improved safety signage system usually results in an overall reduction in the quantity of signage due to the elimination of duplicate or ineffectual signs and the consolidation of key information into other signs. For Land Managers this may see a reduction in implementation and maintenance costs related to signage and a reduction in the visual pollution of a site. Ballina Shire Council and the NPWS have implemented a commendable system of aquatic and recreational safety signage at many of the access points in the Ballina LGA ‘Appendix A’. The majority of current signage content complies with ASNZ2416:2010, however some warning symbols used on signage within the Ballina LGA have been discontinued from the standard or updated with the most recent version of AS2416:2010. This could be easily rectified by the use of stickers being affixed over existing symbols or when the signs are replaced with natural attrition. The style/layout does not currently meet the type recommended in the ‘National Aquatic and Recreational Signage Style Manual, 3rd Edition, July 2006’. An option could be to replace existing signs with updated symbols and the style/layout be updated through natural attrition. There is an opportunity to provide further aquatic and recreational safety signage as part of an ongoing management plan at the locations identified in ‘Appendix A’. These locations provide a list of associated hazards and a GPS position of where the sign should be placed. Table 3.2.4.1: Summary table of aquatic and recreational signage recommendations for the Ballina LGA

Combined Beach Locations Existing Signs

Possible Consolidation

Proposed Level 2

Proposed Level 3

Total Proposed

Signs

Net Signage

Seven Mile/Lennox Head 110 18 1 6 7 -11

Boulder North 5 0 0 0 0 0

Boulder South 3 0 0 0 0 0


5 1 0 1 1 0

Sharpes 10 0 0 0 0 0

Flat Rocks 11 0 0 0 0 0

Angels North 4 0 0 0 0 0

Angels South 21 1 0 0 0 -1

Black Head 0 0 0 1 1 1

Shelly 15 1 0 0 0 -1

Ballina Head 2 0 0 0 0 0

Lighthouse 17 1 0 0 0 -1

South Ballina 43 0 0 0 0 0

Beswicks 4 0 0 1 1 1

Robins 0 0 0 1 1 1

Patches 14 1 0 2 2 1

Total 264 23 1 12 13 -10


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Note: Net signage = proposed signage minus consolidated signage. For example 13 signs have been proposed in the Ballina LGA however 23 existing signs have the opportunity to be consolidated, leaving a net reduction in overall reduction in signage of 10 signs. When implementing future signage, the following points are recommended: 1. Safety signs as recommended in this report should meet Australian Standard ‘AS 2416 – 2010: Water

Safety Signs and Beach Safety Flags’ and align signage style/layout with the ‘National Aquatic and Recreational Signage Style Manual, 3rd Edition, July 2006’ or the State-wide Mutual guide. It is the recommendation of this report that style is aligned to the former.

2. Signage layout (top-down order) consists of the following:

a) Location name and emergency marker (if/when applicable) or street address b) Hazards and warnings within the designated area c) Safety information or general location/area details d) Regulations e) Facility / Land Manager

3. Safety signs should meet the size/height/placement specifications outlined in ‘AS/NZS 2416.3.2010 Water

safety signs and beach safety flags’. 4. ‘Diamond’ hazard symbols should be utilised (not triangle). Context: ASNZ2416 provides for the use of

either ‘diamond’ or ‘triangle’ hazard symbols. For consistency with existing signage and across local government areas the more effective diamond symbols should be utilised.

5. Effective placement of aquatic and recreational safety signage in a public reserve cannot be

underestimated. Location, height and existing visual distractions are major factors which contribute to the effectiveness of a sign when installed.

6. Signs positioned in car parks should be placed central to the parking area and where parked vehicles will

not obscure the sign.

7. Signs that are positioned in relation to open access areas should be spaced at regular intervals, with the distance between individual signs dependent upon the calculated Facility Visitation Rate (FVR).

8. Signs that are positioned in relation to defined access points should be sited as close as practical to the access point, or other appropriate location, and need to be consistently applied where possible e.g. on the left of the track entrance.

9. To effectively capture the attention of visitors, improve overall visual amenity and avoid confusion as a

result of too many signs. Repetitive and/or unnecessary information and signs should be removed. Further, any non-essential signage (not related to location, safety, hazard, prohibition information) that is present at a location should be considered for removal or re-located as appropriate so as not to impact on the recognition of the safety orientated priority signage.


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Level 2 Car Park Signs (Primary access sign) This type of signage can be an option for the Land Manager to be placed at the main entrance/car park to an aquatic environment. The recommended content includes location name, emergency contact information, safety hazards/prohibitions and lifesaving/lifeguard service information. See below for an example. Figure 3.2.4.4: Example level two car park sign

QR Codes QR codes involve the use of smart phone technology to provide location based safety messaging. The system works by scanning a smart phone over the QR Code. These codes could be included on signage (i.e. a sticker) and linked to specific water related safety information, with the potential for multilingual messages.

There are numerous online providers that allow for the creation of a QR code. This stage of the process is cost effective and the only expense is printing. Certain online providers also allow customers to be able to track the number of people who have scanned the QR code. Temporary Signage Temporary individual hazard signs may be used where a hazard is localised, has been identified at a level of risk that warrants a sign posting and is not permanent in nature. In the context of this assessment individual temporary hazard should be implemented where there is a higher risk from beach erosion/dangerous access and debris e.g. after heavy rain. Temporary hazard signs can also be used when the Bureau of Meteorology (BOM) release a dangerous surf warning when the swell reaches a certain height and swell period. Dangerous surf warnings will appear on the official BOM forecast. The most appropriate locations of these signs would be at the main entry points to beaches and directly in front of accommodation providers who have direct beach access.

Richmond River Nature Reserve Following the coronial inquests recommendations regarding safety signage at this location, NPWS have implemented a commendable system of aquatic and recreational safety signage at access points in the Richmond River Nature Reserve. These signs are listed in ‘Appendix A’ and specifically in table 3.2.4.2. The majority of current signage content complies with ASNZ2416:2010, however some warning symbols used on signage within the Richmond River Nature Reserve have been discontinued from the standard or updated with the most recent version of AS2416:2010. This could be easily rectified by the use of stickers being affixed over existing symbols or when the signs are replaced with natural attrition. The style/layout currently meets the type recommended in the ‘National Aquatic and Recreational Signage Style Manual, 3rd Edition, July 2006’.


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Table 3.2.4.2: Appendix A - South Ballina safety signage (exert)

Map Ref Sign Type Sign Description Photo Recommendation GPS Position

LAT LONG

E1 Level Three Access

Sign

South Ballina Beach

Maintain / replace out dated symbols through

natural attrition

-28.875731 153.585083

E16 Safety Warning Signage

No Life Saving Service

Maintain -28.885346 153.570301

E18 Safety Warning Signage

No Life Saving Service

Maintain -28.885372 153.570343


Sign

South Ballina Beach


natural attrition

-28.886404 153.570704


Sign

South Ballina Beach


natural attrition

-28.887040 153.571033


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Treatment Options 1.8 & 2.7 Standardised water safety signage that aligns to Australian standards and best-practice ‘style’ should be implemented at the locations listed in ‘Appendix C’. This may include the maintenance and upgrade of existing signage through planned works schedules, the consolidation of multiple existing signs into a single sign (less signs) or the removal of unnecessary signage.

Treatment Options 1.9 & 2.8 Temporary signage should be used at locations where there is a higher risk of injury due to temporary hazards such as dangerous access/beach erosion and debris.

Treatment Option 3.3 Coastal accommodation providers (e.g. resorts, caravan parks and motels) that have direct beach access should investigate the use of temporary signage at the main entry points during dangerous surf warnings issued by the Bureau of Meteorology (BOM) – warning the public of large/hazardous waves.


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3.2.5 Emergency Marker System

When an incident occurs at a specific street address, it is relatively simple for emergency services to identify the location of the caller/incident. However, when an incident occurs at locations such as open-space parkland, walking trails, beaches or rocks (where no cross-street or other reference point is available) it can delay the identification of a location and the subsequent emergency service response to it. Emergency location markers enable triple zero call takers to immediately and accurately verify the location of an emergency triple zero call. Below is an example of an emergency marker sign could look like. Figure 3.2.5.1: An example of an emergency marker sign.

Emergency markers display a unique number to a specific location, most commonly on existing access/safety signage. These emergency marker displays could be a sticker placed over already existing signage. For an optimal Emergency Marker System to be effective, a standardised state-wide program is required, that engages Police and other emergency service CAD systems and land management authority signage plans. No current program exists in NSW. The Ballina LGA have a local emergency marker system in place (see Figure 3.2.5.2), where current signage displays a numbering code, encouraging people to phone triple-zero (Police) in the case of an emergency. This system is outlined in local emergency procedures however does not include a formal numbering system that links back to NSW emergency services (Police, Ambulance and Fire). Following on from recent meetings, Australian CoastSafe will be supplying the Emergency Information Coordination Unit (EICU) (NSW LPI) with the locations and numbers of these signs so there is a greater chance that a ‘000’ operator will recognise these numbers. Figure 3.2.5.2: An example of an emergency marker sign

Australian CoastSafe is working with key government departments and emergency services to develop a best practice emergency marker system which can be rolled out on a state-wide basis in the near future.

Treatment Option 3.4 With guidance from the NSW Ministry for Police and Emergency Services and Land and Property Information a state-aligned emergency marker program at all identified access locations should be implemented once such a program is established.


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Treatment Option 5.2 To reduce the likelihood of confusion which may lead to delays in an emergency response, Australian CoastSafe will supply the Emergency Information Coordination Unit (EICU) (NSW LPI) with data and information collected referencing the existing localised marker system for inclusion in the Spatial Information and Mapping System (SIMS).


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3.2.6 Access Infrastructure and Ongoing Capital Works/Maintenance Programmes

How the coast is accessed is a significant factor in the management of coastal risk. While preventing public access/use to the coastal environment is not desired, a number of options exist to minimise the risks associated with the access way itself and the hazards that may be encountered on the coast (via that access way). In reference to the assessment process, access points have been broken down into formal (defined), and informal (undefined) access. Access issues are interrelated to other risk management initiatives/options such as water safety signage, emergency access numbering/reporting, supervision (lifeguard) information and public rescue equipment. An effective access plan for an area may optimise the effectiveness and efficiency of other initiatives. Figure 3.2.6.1: A formal access track at Lighthouse Figure 3.2.6.1: An informal access track at Skennars Head

In the Ballina LGA the majority of formal access tracks are well maintained. Periodic inspections take place due to vegetation overgrowth, degraded footings and unattached fence posts. A number of informal access tracks also exist.

Formal, well maintained access ways are effective in promoting and facilitating the use of a generally safer ‘track’, effectively exposing people to the relevant safety signage/information, reducing the quality of signage required and enhancing emergency reporting/location identification.

Informal access ways may create higher risk through use (uneven ground/hazards), may expose people to dangerous locations (cliffs/unstable and uneven surfaces), may require duplicate/multiple signage (inefficient/costly) and may make emergency location reporting difficult (location awareness).

Options for formalising/redirecting or consolidating informal access use may include man-made barriers, vegetation growth and fencing.

It is noted that for some locations/situations it may be difficult to formalise access and/or restrict the use of informal access.


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Table 3.2.6.1: The table below shows a summary of access provision within the assessed locations.

Location Open Access

Formal Pedestrian

Vehicle Access

Informal Pedestrian

Private Access

Possible Consolidation

Total

Seven Mile/Lennox Head

2 33 2 10 5 9 43

Boulder North 1 1 0 0 0 0 2

Boulder South 1 0 0 0 0 0 1


0 4 0 5 0 0 9

Sharpes 2 3 0 0 1 0 6

Flat Rocks 0 2 0 0 0 0 2

Angels North 0 2 0 0 0 0 2

Angels South 0 8 1 0 0 0 9

Black Head 0 1 0 0 0 0 1

Shelly 0 11 0 0 0 0 11

Ballina Head 0 1 0 0 0 0 1

Lighthouse 0 6 0 5 0 0 11

South Ballina 0 2 1 2 0 0 5

Beswicks 0 0 1 2 2 0 5

Robins 0 0 1 0 0 0 1

Patches 0 1 2 2 0 0 5

Total 6 75 8 26 8 9 114

Treatment Options 1.10 & 2.9 Formal access paths identified in ‘Appendix A’ should continue to be regularly maintained through ongoing infrastructure and capital works programmes. This will encourage formal access use (rather than informal), enhance the effectiveness of water safety signage and minimise the quantity of signage needed.

Treatment Options 1.11 & 2.10 Informal access paths identified in ‘Appendix A’ should be considered for redirection or consolidation, in order to promote/facilitate the use of formal access.


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3.2.7 Public Rescue Equipment

The table below provides an overview of Public Rescue Equipment (PRE) currently in or available for use in Australia.

Table 3.2.7.1: An overview of Public Rescue Equipment (PRE) (Research Review of Rock Fishing Safety in New

South Wales, 2012)

PRE Type Morphology of current

installations

Advantages Disadvantages Extensive Training Required

Recommended uses in NSW

Rescue Tube Sandy beaches and rock pools

Can be thrown short distances

Requires the patient to enter the water themselves

Yes None

Throw Bag Not in use Distance of deployment

Risk of theft, risk of using the line to return the patient towards the rocks, not strong/tough enough to be resilient from environmental conditions

No May be used on a case by case basis. Further effectiveness investigation required.

Throw Sticks (Stormy grenades)

Personal device (mobile)

Mobility – easily deployed to incident locations Effective mid-range (thrown)

Requires 2 to off-set ‘miss-throw’ of the first

No Yes. Relevant personnel /staff (emergency services/SLS /rangers)

Life Ring (Angel ring)

Steep rampart rock platforms

Ease of use. Rugged design. Awareness campaign established.

Single use device. Distance of deployment. Requires rescuer to approach the platform edge. Weight.

No Steep (>1:1) rampart rock platforms

Silent Sentry Sloping platforms

EPIRB unit immediately alerts emergency services. Multiple balls can be rolled down slopes to the patient keeping the rescuer at a safer distance

EPIRB units were vulnerable to vandalism and disabled

No Sloping (<1:1) rampart rock platforms. Recommended redesign to remove EPIRB housing.

Life Rings (Angel Rings™

2)

Life rings are an instantly recognised lifesaving mechanism and their functionality is easily understood by both a rescuer and the casualty. The national ‘Angel Ring ™

3 Project’ has seen the installation of 116 rings in NSW with 47 confirmed rescues involving their use. (NSW Angel Ring Update, News Bulletin 16 June, ANSA, 2012). There are currently three life rings in the Ballina LGA. The locations of proposed life rings are below, specific locations can be found in Appendix C.

2Angel Ring is a registered trade mark of the Australian National Sportfishing Association.

3 Angel Ring is a registered trade mark of the Australian National Sportfishing Association.


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Table 3.2.7.2: The locations of proposed life rings

Priority Location

1 North side of Skennars Head

Global Positioning Satellite (GPS) GPS technology is available to be used within public rescue equipment such as life rings. Recreational fishing bodies have already trialled certain tracking devices in some areas and should be consulted with in relation to this matter. This technology may be beneficial by the way of a daily audit that can record when a life ring has been washed away or stolen as part of an asset management system.

Treatment Option 3.5 The New South Wales Water Safety Advisory Council should explore the means to fund the expansion and continued maintenance of the ‘Angel Ring Project’ in consultation with the Australian National Sports Fishing Association (NSW Branch) and the Recreational Fishing Alliance of NSW at the locations outlined in Appendix C. Final positioning should be determined by ANSA NSW.


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3.2.8 System of Supervision

The supervision of aquatic coastal locations is often required to manage the risk of the location, whether due to prevailing water conditions, the proximity to large population bases or the attendance of the beach/coastal area due to its proximity or attractiveness. The primary decision to be made by land managers before establishing a lifesaving/lifeguard service is to determine which areas will be patrolled or unpatrolled. A patrolled beach is one at which a trained lifesaver and/or lifeguard is stationed during prescribed times and designated by the flying of red and yellow flags. A mobile lifesaver/lifeguard or lifeguard vehicle that periodically visits or checks a location may be effective as a proactive education initiative but should not be considered as providing a patrolled swimming location. The decision whether to provide supervision or not to provide supervision can be difficult to establish because of the following: o The provision of a service may encourage attendance at a non-suitable location, such as when the beach

topography and morphology create a highly hazardous location. This factor would be reflected in the ABSAMP beach hazard rating

o Deemed too cost prohibitive and therefore not provided by the responsible land manager o The patronage of the location is too low and the assessed risk level is minimal There are a range of aquatic supervisory services that should be considered, as it is not “one size fits all”. They include: o Full time comprehensive lifesaving/lifeguard service with appropriate levels of trained personnel, fixed and

portable facilities, equipment, craft, vehicles and links to central command and emergency services. o Seasonal lifesaving/lifeguard service with appropriate levels of trained personnel, portable facilities,

equipment, craft, vehicles and links to central command and emergency services. o Seasonal lifesaving/lifeguard Service with trained personnel, portable facilities, some equipment and craft,

and links to a command centre. o A flexible demand based service with trained personnel provision which allocates resources to where they

are most needed. o Surveillance cameras. o No service, but the provision of safety signs and controlled access. Volunteer Lifesaving Service Surf Life Saving New South Wales are currently in the process of working with the Far North Coast Branch and Ballina Surf Life Saving Clubs to set volunteer lifesaving dates and patrol hours for the next three seasons. Patrol dates and hours are proposed to be consistent across the Ballina Coast as well as the greater Far North Coast area and will greatly increase the safety of these locations. Note: The extension of volunteer lifesaving hours (as shown on the following pages) are not recommendations of this coastal public safety risk assessment. Volunteer hours are determined at a State, Branch and Club level at Surf Life Saving NSW.

Interstate School Holiday Periods Lifeguard services in the Ballina LGA should cover both the NSW and QLD School Holiday periods. High visitation levels occur on Ballina Shire Council beaches from those people who are on holiday from Queensland, whether these are day trips or overnight stays.

Paid Lifeguard Service The following section examines the lifeguard services at each location within the Ballina LGA. The recommendations outlined may be useful to land managers when seeking advice for future lifeguard contracts.


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Table 3.2.8.1: Australian Lifeguard Service patrol schedule

Australian Lifeguard Service

Beach Patrol Period Days Times Staff Level

Lennox Head September – December Mon-Fri 9am – 5pm 2

Summer School Holidays Mon-Fri 9am – 6pm 2

February – April Mon-Fri 9am – 5pm 2

Sharpes 25/09/2012-7/10/2012 Sun-Sat 9am – 5pm 2

22/12/2012-28/1/2013 Sun-Sat 9am – 5pm 2

29/03/2013-1/4/2013 Sun-Sat 9am – 5pm 2

13/04/2013-29/4/2013 Sun-Sat 9am – 5pm 2

Shelly 25/09/2012-5/10/2012 Mon-Fri 9am – 5pm 2

22/12/2012-28/1/2013 Mon-Fri 9am – 5pm 2

15/04/2013-29/4/2013 Mon-Fri 9am – 5pm 2

Table 3.2.8.2: Surf Life Saving Clubs patrol schedule

Surf Life Saving Clubs

Club Patrol Period Saturdays Sundays P/H

Lennox Head Spring School Holidays 9am - 4pm 9am - 4pm 9am - 4pm

October, November, December 10am - 4pm 10am - 4pm 10am - 4pm

Summer School Holidays 9am - 5pm 9am - 5pm 9am - 5pm

February, March, April 10am - 4pm 10am - 4pm 10am - 4pm

Ballina Lighthouse Spring School Holidays 9am - 5pm 9am - 5pm 9am - 5pm

October, November, December 9am - 5pm 9am - 5pm 9am - 5pm

Summer School Holidays 9am - 5pm 9am - 5pm 9am - 5pm

February, March, April 9am - 5pm 9am - 5pm 9am - 5pm

International Best Practice The International Life Saving Federation (ILSF) is the peak body for lifeguard and water safety organisations internationally. Lifeguard/lifesaving uniforms: The ILS recommends the colours for uniforms be red & yellow

4. Lifeguards/lifesavers throughout the world are

called upon to provide safety services at a range of water environments that include swimming pools, beaches, lakes, river front and other waterfronts. In providing these aquatic safety services, it is important that the people using these environments for aquatic activity can readily identify the lifeguards for:

o Guidance on safety issues, and o Assistance in times of need

As such the lifeguards should be readily distinguishable against the many people and colours they may be wearing while in, on or around these aquatic environments. The red and yellow colours have been used by a number of International Lifesaving Member Federations for many years to such an extent and with much success that red and yellow has become synonymous with lifesavers and lifeguards in these countries. Red and yellow flags: The use of red & yellow feathered flags is undertaken to provide the maximum visual effect to identify a designated swimming area. Ballina Shire Council currently does not use the feathered patrol flag on Ballina

4 Lifesaving Position Statement - LPS 05 - Lifesaver And Lifeguard Uniforms


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beaches. Although the feathered patrol flag is an optional component of the Australian Standard, Australian CoastSafe would encourage Ballina Shire Council to consider adopting the feather flag. Lifesaving Service Level Calculator The lifesaving service level calculator takes into consideration the ABSAMP beach hazard ratings, visitation levels, frequency of use, residency of visitors, incident history and remoteness of location to determine best practice lifesaving service levels. The first decision that needs to be made by a Land Manager is whether or not a location should be patrolled. The Action Planning Priority Index (p.42-43) should be used to guide decision making on which locations are of greater risk and therefore a higher priority for a lifesaving service. The lifesaving service level calculations should not be used in isolation to determine whether or not a lifesaving service should be provided, however once a decision has been made to provide a service the calculations should be referred to for guidance on the minimum service level required. The following lifesaving service level descriptors provide the recommended lifesaving service level for the scores/ratings. The scores are not absolute and are to be used as a guide in determining the actual levels. Table 3.2.8.3: lifesaving service level descriptors provide the recommended lifesaving service level for the scores/rating as calculated in the sections that follow.

Rating Lifesaving Service Level Description

</= 10 Warning signage e.g. Aquatic & Recreational Signage Style Guide

11-14 Emergency beacons and/or camera surveillance or swimming enclosure (where applicable)

Routine monitoring/surveillance patrols (land, sea, air) to also be considered

15-19 Lifesaving service = 1 x Lifeguard personnel during period assessed (refer to note 2)

20-25 Lifesaving service = 2 x Lifeguard personnel during period assessed

26-30 Lifesaving service = 3 x Lifeguard personnel during period assessed

31 and > Lifesaving service = more than 3 Lifeguard personnel during period assessed

Notes to table: Note 1: When visitations and frequencies are low yet rating is high, consideration should be given to some form of surveillance patrols or IT solutions to overcome variations of population/visitation numbers. Note 2: The option to have one lifeguard on a beach is only permissible under specific circumstances, these being: o The ABSAMP beach hazard rating is less than 4, or o Access to other rescue services is less than 5 minutes, direct communication with services is in place, and a

Rescue Water Craft is in place. Otherwise the minimum number of lifeguards at a given location would be two.

Where the number of people in the patrolled area is over 1,000 the lifesaving service provider should increase the number of lifesaving personnel in line with the following table. Table 3.2.8.4: Impact of beach attendance on lifesaving service levels

No. of People on Beach No. of additional lifeguards

1,000 - 5,000 2

5,000 - 10,000 4

> 10,000 6

Crowds can become in themselves hazardous as a result of difficulties of surveillance and heightened crowd interaction


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Reference Tables: The tables below provide definitions for the scores used in the Lifesaving Service Level Calculator. The definitions are range based to allow for a margin of error where detailed recorded data may be lacking. In such cases information has been gathered through consultation with local experts and beach users. Table 3.2.8.5: Visitation Rating - visitation levels can be determined by (but not limited to) SLS patrol log books, tourism visitation statistics, local knowledge of the area (interviews with users and stakeholders)

Rating Description

1 Less than 50 people in the water and on the beach during peak period of day

2 51 to 249 people in the water and on the beach during peak period of day

3 250 to 500 people in water and on the beach during peak period of day

4 500 to 1,000 people in the water and on the beach during peak period of day

5 Greater than 1,000 people in the water and on the beach during peak period of day

Table 3.2.8.6: Frequency Rating – relating to the frequency with which the visitation rating (Table 3.2.8.3) occurs

Rating Description

1 Peak visitation occurs once in a month

2 Peak visitation levels occur once a week

3 Peak visitation levels occur every weekend (Saturday/Sunday)

4 Peak visitation levels occur every day

5 Peak visitation levels continuously every day

Table 3.2.8.7: Type of User – Residency Rating (>10% of the peak visitation)

Rating Beach visitor residency and assumed level of beach safety knowledge

1 General knowledge of local beaches and related beach safety issues, including awareness of rips and general beach hazards and role of lifesavers/lifeguards.

2 General knowledge of beach safety issues relevant to their state/region, awareness of rips and role of lifesavers/lifeguards, limited or no knowledge of beach in question

3 General knowledge of beach safety issues and role of lifesavers/lifeguards, limited or no knowledge of rips, limited or no knowledge of beaches and issues relating to beaches in state being visited, including biological hazards in northern Australia.

4 Limited or no knowledge of beach safety issues and role of lifeguards. Ability to read signs and converse with lifeguards. No knowledge of Australia beach conditions and general Australian beach hazards, especially rips in south and biological hazards (crocodiles & stingers) in northern Australia.

5 No knowledge of beach safety issues and role of lifeguards. Unable to read beach signage or converse with lifeguards. No knowledge of Australia beach conditions and general Australian beaches hazards, especially rips in south and biological hazards (crocodiles & stingers) in northern Australia.

Table 3.2.8.8: Incident History Rating – for beaches where there is not currently a service. Consideration should be given to incidents occurring over the previous 5 years.

Rating Description

1 Less than 5 minor incidents / first aid treatments reported

2 5 or more minor incidents / first aid treatments reported

3 Less than 3 major incidents/first aid treatments reported

4 Between 4 and 6 major incidents/first aid treatments reported

5 7 or more major incidents/first aid treatments, OR 1 or more preventable fatalities in the previous 5 years


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Table 3.2.8.9: Incident History Rating - for beaches where there is currently a service. Consideration should be given to incidents occurring over the previous 12 months / 1 year.

Rating Description

1 1 minor incident or preventative action per day

2 More than 1 minor incident or preventative action per day

3 1-3 major incidents/first aid treatments per month

4 Between 4 and 6 major incidents/first aid treatments per month

5 7 or more major incidents/first aid treatments per month, OR 1 or more fatalities in the previous 12 months

Table 3.2.8.10: Remoteness Rating – an indication of the proximity of support when responding to an incident in the water. This support could be from a neighbouring lifesaving/lifeguard service or a local emergency service such as Police, Fire or Ambulance.

Rating Description

1 Access to other rescue services/or assistance less than 3 minutes

2 Access to other rescue services/or assistance 3-5 minutes



5 Access to other rescue services/or assistance more than 15 minutes

Lifesaving Service Level Calculations: The tables and information below provide guidance on the appropriate level of lifesaving service required at Ballina LGA beaches once a decision to provide lifesaving / lifeguarding service has been made. The decision to provide a lifesaving/lifeguarding service is not dependant upon the outcome of the lifesaving service level calculations in the table below. Table 3.2.8.11: Lennox Head: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 3 4 3 4 3 23

Autumn 6 3 3 3 4 3 22

Winter 6 2 2 3 2 3 18

Spring 6 3 3 3 4 3 22

These calculations support the current service level provided. Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over winter should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.12: Boulder North: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 2 2 3 1 3 17

Autumn 6 2 2 3 1 3 17

Winter 6 1 2 3 1 3 16

Spring 6 2 2 3 1 3 17

Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over summer, autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history.


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Table 3.2.8.13: Boulder South: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 5 1 2 3 1 3 15

Autumn 5 1 2 3 1 3 15

Winter 5 1 2 3 1 3 15

Spring 5 1 2 3 1 3 15

Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over summer, autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.14: Sharpes: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 3 3 3 2 3 20

Autumn 6 2 3 3 2 3 19

Winter 6 1 2 3 2 3 17

Spring 6 2 3 3 2 3 19

These calculations support the current service level provided. Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over winter should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.15: Angels North: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 2 3 3 1 3 18

Autumn 6 2 3 3 1 3 18

Winter 6 1 2 3 1 3 16

Spring 6 2 3 3 1 3 18

Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over summer, autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.16: Angels South: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 2 3 3 1 3 18

Autumn 6 2 3 3 1 3 18

Winter 6 1 2 3 1 3 16

Spring 6 2 3 3 1 3 18



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Table 3.2.8.17: Shelly: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 3 4 3 0 4 2 22

Autumn 6 3 3 3 0 3 2 20

Winter 6 2 2 3 0 3 2 18

Spring 6 3 3 3 0 3 2 20

As the lifeguard and lifesaving patrols will be moving to Lighthouse Beach it is recommended that a lifeguard service should continue to patrol 7 days a week over the Spring, Summer and Autumn School Holidays. Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over winter should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.18: Lighthouse: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 4 4 3 0 4 2 23

Autumn 6 3 3 3 0 4 2 21

Winter 6 2 2 3 0 4 2 19

Spring 6 3 3 3 0 4 2 21

These calculations support the current service level provided. Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over winter should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.19: South Ballina: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 2 3 4 5 3 23

Autumn 6 2 2 4 1 3 18

Winter 6 1 2 4 1 3 17

Spring 6 2 2 4 1 3 18

Even though the lifesaving service level scores in the table above indicate a service level of 2 lifeguards over summer and 1 lifeguard over autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to notes below. Notes: South Ballina is located south of the Richmond River and can be a hazardous location for non-experienced beach goers e.g. high energy nature (open beach, numerous rip currents, high waves) and remoteness. A lifeguard service existed at this location (close to the break wall) up until season 2011/2012 however this service has since been removed. Below are the beach attendance figures for South Ballina over a seven year period. Attendance figures did not take into account beach usage in front of the South Ballina Beach Holiday Park.


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Table 3.2.8.20: Beach attendance figures for South Ballina Beach (SurfGuard, 2013)

South Ballina Beach Attendance

Season Attendance Days patrolled Av. per day

2005/06 1,932 13 148

2006/07 542 9 60

2007/08 461 14 33

2008/09 2,417 16 151

2009/10 2,571 16 161

2010/11 542 10 54

2011/12 783 11 71

Totals 9,248 89 104

The South Ballina Beach Holiday Park (Ballina Beach Village) is the major accommodation provider in the township at South Ballina. This holiday park has over 100 powered and non powered sites and has a maximum capacity of approximately 350 people. The holiday park also has direct access to the beach. Consultation from the holiday park owners suggests there is a steep increase in overall beach usage over the summer school holidays and in particular over the two week period from Boxing Day to the end of the first week in January. Discussions have previously taken place between the South Ballina community, private holiday park owners, the NPWS and Ballina Shire Council in regards to the suitability of, and the need for the continuation of the lifeguard service at South Ballina. To date, no agreement has been made. If a lifeguard service was to operate at this location, Australian CoastSafe would advise that the lifeguards patrol directly in front of the caravan park beach access. However, Australian CoastSafe acknowledges the following issues: o 4WD beach access is extremely close to where the patrol would be stationed o Environmental protection issues e.g. shore birds o No suitable facilities are currently in place e.g. parking, rubbish bins, amenity blocks o The expectation that this section of the beach is a safe option to swim outside of lifeguard patrol hours,

when in fact this is not true To further capture coastal usage of South Ballina, technology exists to able to record vehicle numbers (via the pacific highway and the ferry service). An average number of persons per car can then be multiplied by the number of vehicles. Paid Lifeguard Service In summary, it is the view of Australian CoastSafe that through the on-site data collected, consultation and beach usage statistics, that there is currently no requirement for a lifeguard service at South Ballina. This should be made clear to visitors to the tourist park upon check in and through the provision of beach safety collateral. This message can also be reinforced on any Aquatic and Recreational Safety Warning Signage displayed at this location. It would be beneficial to clearly identify the nearest patrolled location on each of these methods of communication. Finally, if funding this potential lifeguard service is an issue a co-share agreement may be an option for the relevant parties. Table 3.2.8.21: Beswicks: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 1 3 3 1 3 17

Autumn 6 1 2 3 1 3 16

Winter 6 1 2 3 1 3 16

Spring 6 1 2 3 1 3 16


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Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over summer, autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.22: Robins: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 1 3 3 1 3 17

Autumn 6 1 2 3 1 3 16

Winter 6 1 2 3 1 3 16

Spring 6 1 2 3 1 3 16

Even though the lifesaving service level scores in the table above indicate that a service level of 2 lifeguards over summer, autumn, winter & spring should be considered, if a lifeguard service were to be provided during this period, a service has not been recommended due to lower visitation numbers and low incident history. Table 3.2.8.23: Patches: Lifesaving Service Level Calculator

Dates ABSAMP

Rating

Visitation

Rating

Frequency

Rating

Residency

Rating

Incident History

Rating

Remoteness

Rating

Total LSSL

Score

New Existing

Summer 6 1 3 3 1 4 18

Autumn 6 1 2 3 1 4 17

Winter 6 1 2 3 1 4 17

Spring 6 1 2 3 1 4 17


Treatment Option 1.12 Explore the means to fund the lifeguard service at Lighthouse and Seven Mile Beach/Lennox Head cover both the New South Wales and Queensland School Holiday periods.

Treatment Option 1.13 When the volunteer lifesaving service returns to Lighthouse Beach, Ballina Shire Council should explore the means to fund the expansion of the lifeguard services at Shelly Beach to cover 7 days a week during the spring, summer and autumn school holidays.

Treatment Option 1.14 When the volunteer lifesaving service returns to Lighthouse Beach, Ballina Shire Council should explore the means to fund a 7 month lifeguard service at Lighthouse Beach, to reflect the same patrol periods and hours covered by the service at Seven Mile Beach/Lennox Head.


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4. Emergency Response The relatively high rate of critical emergency incidents in the Ballina LGA in the past 10 years makes consideration of issues in relation to emergency response extremely relevant to a drowning prevention strategy for the area. Emergency response considerations include but are not limited to: Emergency communications/reporting (000) Emergency service response Location identification Emergency service site access Emergency service communications (internal and joint service) Ballina Shire Council currently has in place formal procedures for lifeguards & staff regarding emergency reporting and response. These should be reviewed and updated to reflect any changes/improvements as a result of this risk assessment.

4.1 Emergency Communications/Reporting (000)

The ability of members of the public to request assistance in an emergency is an important component of a drowning prevention strategy. Triple-zero (000) remains and should be promoted as the sole method for reporting an emergency on all relevant signage/safety information and facilitated through any (specific) emergency communication devices. Due to the prevalence of mobile telephones across all demographics of society, additional emergency communications devices (beacons/radio phones/alarms) are less relevant where adequate mobile phone coverage exists.

4.2 Emergency Response Beacons

Emergency response beacons are a mobile or fixed unit capable of providing emergency communications to high risk remote localities where deaths have occurred. In such locations the time taken to raise the alarm and achieve a response of emergency services is a contributing factor to the chance of survival. This unit (pictured below) is capable of communicating over the two way radio network or the mobile telephone network. There are two main types of Emergency Response Beacons: Mobile: A movable unit which is employed for use within a patrolling system. Placed at a designated location during patrol hours and recovered at the end of patrol. They complement an existing on-beach service within that services coverage area. Fixed: A unit which is permanently or semi-permanently positioned at a location, and provides 24/7 capacity. Fits within a coordinated SLS emergency response system, whereby the unit is monitored and complemented with specific procedures for emergencies. Emergency Response Beacons are positioned in high use / high risk areas. They are highly visible and once activated, link via radio to lifesaving services. They aim to improve the response time of SLS services to an incident within their coverage area. Mobile Emergency Response Beacons are positioned at suitable locations within a SLS services coverage area at the start of patrol and are to be used in conjunction with lifeguard and volunteer lifesavers. These will commonly be back-beaches, at adjacent usage/access point on long-stretches of beach, coastal pools. They will be linked via radio to the service patrol (ideally on simplex channel) and/or monitored by Surfcom/Duty Officers. They are removed at the conclusion of patrol and returned to the club/service base for recharge and cleaning.


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Fixed Emergency Response Beacons which would operate outside of patrol hours should only be considered for use in a high risk location, where no/limited mobile/cell phone coverage exists and where a SLS service can ensure, show and maintain 100% coverage/monitoring of the beacon and have in place a consistent process of equipment checking/testing year round. Image 4.2.1: A mobile Emergency Response Beacon in place at a beach.

Treatment Option 5.3 A mobile emergency response beacon should be installed at Seven Mile Beach (800m south of surf club) when the lifeguard service is not operating.


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4.3 Emergency Service Response

The relatively high rate of coastal emergency incidents in the Ballina LGA compared with other coastal councils in NSW makes consideration of issues in relation to emergency response extremely relevant to a drowning prevention strategy for the area. Emergency services and support organisations play a vital role in responding to coastal emergencies within the Ballina LGA. Resources that may respond include: o Police (including Water Police) o Ambulance (including the Westpac Helicopter) o Australian Lifeguard Service o Surf Life Saving Far North Coast (Branch Callout Teams & SLSCs) o State Emergency Service (SES) o Rural Fire Service o Marine Rescue NSW Below is a summary of the emergency services located in the Ballina LGA. Table 4.3.1: Emergency Service locations for Ballina LGA.

Emergency Services – Ballina Local Government Area

Emergency Service Street Address Suburb

Ballina Police Force 16 River Street Ballina

Alstonville Police Force 2 Perry Street Alstonville

Wardell Police Force Cedar Street Wardell

Ballina Ambulance Service 72 Cherry Street Ballina

Alstonville Ambulance Service n/a Alstonville

Ballina Fire and Rescue 60 Crane Street Ballina

Alstonville Fire and Rescue 1 Mellis Circuit Alstonville

Westpac Life Saver Rescue Helicopter 60 Brunswick St Lismore

Ballina Marine Rescue Lighthouse Parade Ballina

Ballina State Emergency Service Moon Street Ballina

Due to the frequency and severity of the emergency incidents that occur at the Ballina Bar, there is the opportunity for annual training scenarios between Emergency Services such as Police and Marine Rescue to work with surf rescue assets such as the Ballina Jet Boat, RWCs, IRBs, lifesavers and lifeguards. These scenarios should be coordinated and organised by the Ballina Local Emergency Management Committee.

Treatment Option 1.15 The Ballina Local Emergency Management Committee to coordinate the relevant emergency services and local surf life saving assets to conduct annual training scenarios at the Ballina Bar.


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Emergency Service Communications (internal / joint) Radio coverage for surf life saving communications is strong within the Ballina LGA. The Ballina repeater provides good coverage throughout the region as shown in figure 4.3.1. Where signal strength from Ballina is compromised in the north the back to back repeater at Lennox Head provides coverage. Figure 4.3.1: Ballina repeater coverage

Figure 4.3.2: Lennox Head repeater coverage

Key:

No coverage

(black spot)

Signal strength

(limited)

Signal strength

(average)

Signal strength

(strong)


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4.4 Ballina Emergency Tasking Details

Specific Callout Procedures: o ALS Lifeguards patrol at Salt Beach 7 days per week all year and can also respond to nearby areas o For border incidents, SLSQ resources can also be contacted

The tables below detail call out procedures for Surf Life Saving Far North Coast Branch. We acknowledge that whilst not all details are relevant for Ballina LGA, they have been included as incidents close to council borders may have different resources responding. Table 4.4.1: Surf Life Saving Far North Coast Callout List

BRANCH CALLOUT LIST

Priority Call Point of Call Mobile Other Call Sign

1st Call Branch Emergency Phone 0432 217 500 N/A N/A

2nd Call Jimmy Keough (Byron DO) - - Far North Coast 11

3rd Call Ben Redman (Ballina DO) - - Ballina 11

4th Call Peter Sweetman (Clarence DO) - - Clarence 11

5th Call Chris Samuels (Tweed DO) - - Tweed 11

Table 4.4.2: Other Branch Duty Officers

OTHER BRANCH DUTY OFFICERS

Priority Call Point of Call Mobile Other Call Sign

Priority Call Rodger Beadman - Byron Bay Duty Officer Phone

0419 092 217

Byron 12

Byron Bay Dan Andrew - Byron 13

Clarence Bill Onslow - N/A Clarence 12

Table 4.4.3: Lifeguard Contacts

LIFEGUARD CONTACTS

Tweed / Byron / Ballina / Richmond Councils – ALS (Duranbah to Evans Head)

Priority Call Point of Call Mobile Call Sign

1st Call Scott McCartney - Lifeguard 12

2nd Call Jarrad Kain - Tweed 1

Clarence Council – ALS (Iluka to Wooli)

1st Call N/A

Table 4.4.4: Support Operations

SUPPORT OPERATIONS

Support Operation Service Contact Call Sign

SurfCom Ballina 6681 6677 SurfCom Ballina

Lismore Helicopter Northern Region 6627 4409 Lifesaver 2&4

Ballina Jet Boat Mark Puglisi Surf Rescue 40


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Table 4.4.5: Marine Rescue contacts

Table 4.4.6: Club after hours contacts

CLUB AFTER HOURS CONTACTS

Club Member Mobile Other

Fingal Rovers Deborah Cheers - -

Cudgen Headland Andrew Mills - -

Salt David Hoare - -

Cabarita Joanne Howes - -

Brunswick Grant Carey - -

Byron Bay Kurt Tutt - -

Lennox Head Wayne Jones - -

Ballina Joe Keane - -

Evans Head Ben Redman - -

Yamba Joe Dougherty - -

Note: Contact details have been removed for privacy.

MARINE RESCUE

Emergency Service Type Contact Call Sign

MR Point Danger (07) 5536 9333 Marine Rescue Point Danger

MR Kingscliff 6674 2451 Marine Rescue Kingscliff

MR Tweed Coast 0427 761 557 Marine Rescue Tweed Coast

MR Brunswick 6685 0148 Marine Rescue Brunswick

MR Byron 6680 8417 Marine Rescue Cape Byron

MR Ballina 6681 4700 Marine Rescue Ballina

MR Evans Head 6682 4888 Marine Rescue Evans Head

MR Iluka / Yamba 6646 6311 Marine Rescue Yamba


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5 Monitor and Review This process ensures that risk treatment options are meeting their objectives, new hazards and risks are identified in a timely manner and evolving strategies are in line with community expectations. Land managers should ensure that a there is a process of regular review of the effectiveness of any risk mitigation strategies that have been implemented. This should include a process for the collection of data regarding any incidents affecting public safety at the locations assessed as well as the use of public rescue equipment and emergency response phones. Land managers may determine to further engage service providers such as Australian CoastSafe/Surf Life Saving New South Wales to assist with this task. It is acknowledged that the NPWS already have a system of monitor and review built into the ‘NPWS Visitor Safety Regional Risk Register User Guide’ which incorporates a system of monitoring and reviewing all identified risks and the effectiveness of risk mitigation strategies. The process should include the review of all incident data, access points, signage and public rescue equipment.

Treatment Options 1.16 & 2.11 In consultation with relevant stakeholders this document should be reviewed annually to measure the effectiveness of any risk mitigation strategies and drowning prevention initiatives that have been implemented.

Treatment Options 1.17 & 2.12 All drowning prevention strategies should be documented and incorporated into the relevant strategic and management plans. This will ensure consistency throughout the management area and a structured approach to maintenance.


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6 References Angel Ring Project, 2012, ‘NSW Angel Ring Update – 17

th June 2012’, Australian National Sports fishing

Association (NSW Branch)’, Sydney, viewed on 7TH

January, 2013 <http://www.angelrings.com.au/wp-content/uploads/2010/06/NewsBulliten17thJune2012.pdf>

Barns, R 2012, ‘NSW Councils Beach Safety Information Signage’, Statewide Mutual, Sydney Bradstreet A, Sherker S, Brighton B, Weir A, Thompson, M 2012, ‘Research Review of Rock Fishing in New South Wales’, Surf Life Saving Australia, Sydney. Census Data, 2011, ‘Quick Stats – Ballina Local Government Area’, Australian Bureau of Statistics, Canberra, viewed on 4 February, 2013, Destination NSW, 2011, ‘Travel to Ballina Local Government Area’, Tourism Research Australia, Canberra, viewed on 4 February, 2013, International Life Saving Federation, 2008, ‘Drowning Prevention Strategies A framework to reduce drowning deaths in the aquatic environment for nations/regions engaged in lifesaving’, 8

th edition, The

International Life Saving Federation, Belgium Life Saving Victoria, 2006, ‘National Aquatic and Recreational Signage Style Manual’, 3rd edition, State Government of Victoria, Melbourne McCarthey, A 2012, ‘Advice – Liability of Council when installing Water Safety Signage & Personal Rescue Equipment’, State of New South Wales (Crown Solicitor’s Office), Sydney NSW Division of Local Government, 2012, ‘Practice Note No. 15 – Water Safety’, Department of Premier and Cabinet, Nowra Short, A 2006, ‘Australian Beach Safety Management Program’, Coastal Studies Unit, University of Sydney, Sydney Standards Australia, 2009, ‘AS/NZS ISO 31000:2009 Risk Management Principles and Guidelines’, 4th edition, Standards Australia, Sydney Standards Australia, 2010, ‘AS/NZS 2416:2010 Water safety signs and beach safety flags: Part 1: Specifications for water safety signs used in workplaces and public areas’, Standards Australia, Sydney Standards Australia, 2010, ‘AS/NZS 2416:2010 Water safety signs and beach safety flags: Part 2: Specifications for beach safety flags – “colour, shape, meaning and performance’, Standards Australia, Sydney Standards Australia, 2010, ‘AS/NZS 2416:2010 Water safety signs and beach safety flags: Part 3: Guidance for use’, Standards Australia, Sydney Statewide Mutual, 2007, ‘Best Practice Manual, Signs As Remote Supervision’, V.3, Statewide Mutual, Sydney Surf Life Saving Australia, 2010, ‘The Australian Coastal Public Safety Guidelines’, 2nd edition, Surf Life Saving Australia, Sydney Surf Life Saving Australia, 2011, ‘Coastal Public Safety Risk Assessor Learner Guide’, V.3, Surf Life Saving Australia, Sydney


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