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Planning and Regulatory
Committee
7 June 2016
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Part
A Reports
Camping Control Bylaw 2015 - Season Review
Update
Department: Parks and Recreation
EXECUTIVE SUMMARY
1 The
purpose of this report is to update the Planning and Regulatory Committee on
the 2015/2016 Freedom Camping season following the adoption of the Camping
Control Bylaw 2015 in September 2015.
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RECOMMENDATIONS
That the Committee:
a) Notes staff
will work with the local Community Boards before the beginning of the
2016/2017 season to ensure infrastructure requirements are adequately met at
the designated unrestricted freedom camping sites, Warrington Domain and
Ocean View Recreation Reserve.
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BACKGROUND
Previous Camping Control Bylaw 2013
and Responsible Camping Policy
2 Council
adopted the previous Camping Control Bylaw and Responsible Camping Policy in
2013. The bylaw introduced three trial areas for freedom camping in
non-certified vehicles and permitted self-contained camping throughout the rest
of the Dunedin City boundary. Prohibited sites included scenic reserves,
cemeteries and Tairoa Head.
3 The
Council was unable to enforce the previous bylaw, as controls were included in
the policy rather than the bylaw. This created confusion for the community and
campers.
4 In June
2015 Council approved a new draft Camping Control Bylaw 2015 (the bylaw) for
public consultation.
Adopted Camping Control
Bylaw 2015
5 Following
public consultation, the bylaw was adopted by Council in September 2015 with an
operative date of 1 November 2015.
6 The bylaw
consolidated the previous Camping Control Bylaw 2013 and Responsible Camping
Policy into a single document. The most significant change was that the new
bylaw allowed for enforcement of freedom camping in prohibited areas throughout
the city.
7 Unrestricted
freedom camping sites were reduced from three sites to two; and three
prohibited zones were introduced on the Otago Peninsula.
DISCUSSION
Implementation
of the bylaw
8 The
Freedom Camping Act 2011 and the bylaw allow freedom camping to occur all year
round, however the camping season is considered to be from the start of the
September through to the end of April. For the 2015/2016 season the bylaw was
operative on 1 November 2015 with monitoring and enforcement carried out
through to the end of May 2016 due to the warmer weather.
9 Staff
took the approach of a strong education programme on the bylaw and consistent
enforcement of breaches to the bylaw.
10 Freedom Camping app
providers were supplied with the bylaw and associated maps to identify
prohibited and non-prohibited areas. Throughout the season these apps were
monitored to ensure correct information was provided to campers.
11 The 'where can I
camp' brochures were updated, printed and distributed to businesses and
organisations across the city and at relevant entry points for visitors.
The brochure will be reviewed in September each year for the following season.
12 For the first two
weeks of the season, an education programme was carried out before infringement
notices were issued.
13 Freedom camping
signs were installed on the roads at each entry and exit point to the
prohibited areas on the Otago Peninsula. Directional signs at Warrington were
installed later in the season to add clarity and direct campers to the correct
designated freedom camping site.
14 Onsite signs and
maps were installed at Warrington Domain (Warrington) and Ocean View Recreation
Reserve (Ocean View). These two sites are included in the bylaw as unrestricted
designated freedom camping sites. Throughout the season both sites had
additional maps and signs installed at the request of the community and
Community Boards for greater information clarity.
Enforcement
15 A fixed term (6
month) contract for the first season was awarded to an external contractor to
complete the enforcement of the bylaw. The contract was for one daily three
hour patrol alternating across four selected routes. This was completed between
the hours of 4:00-7:30am.
16 The early morning
patrols were introduced following feedback from other districts as an effective
method where no direct contact is made with the campers. The enforcement
programme was not reactive.
17 The Kensington Oval
car park was consistently used by campers throughout the season by both
self-contained (permitted) and non-self-contained vehicles (not permitted).
This was monitored by enforcement officers and added to the end of daily
patrols.
18 The contract was
extended for a one month period on a reduced patrol cycle to monitor the
freedom camping activity throughout the warmer weather in May.
19 Staff will determine
the most appropriate method of providing management and administration of
enforcement services ahead of the 2016/17 season.
Infrastructure demands
20 The greatest
pressures on existing infrastructure were observed throughout the season at
Warrington and Ocean View, which were at or exceeding capacity.
21 Ocean View has a
shared car park where half the space is designated to freedom campers and half
to public use. Due to the high number of campers at this site vehicles often
parked in the public area leading to infringements being issued and causing
frustration for other users of the space. Additional rubbish collection was
also required at Ocean View.
22 At Warrington, the
toilet block and existing rubbish bins were insufficient for the numbers of
campers. Additional rubbish bins and collections were included throughout the
season and latterly temporary portaloos were placed at the opposite end of the
existing toilet block. Below is a record of campers kept by the community from
February-April.
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Vehicle
numbers at Warrington Reserve Camping Area
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Month
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Average
vehicles/night
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x
days in month
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x
est. 2 people per vehicle
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February
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74
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2,146
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4,292
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March
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59
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1,829
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3,658
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April
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35
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1,050
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2,100
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Total
'person nights' for three months
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10,050
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23 Staff are working
closely with the appropriate Community Boards on options to mitigate
infrastructure demands prior to the 2016/2017 season.
2015/2016 Costs
24 The implementation
and running costs for the 2015 Bylaw are shown in Table 1.
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Costs 2014/15
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Costs to date
2015/16
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Estimate 2016/17
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Security
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$12,048
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$33,060
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$34,000
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Litter and Illegal
Dumping
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$11,573
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$19,127
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$15,000
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Toilet Facilities
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$11,028
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$28,000
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Signage – capital one off
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$24,691
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$0
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Signage - operational
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$2,021
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$3,527
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$3,000
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Brochures
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$525
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$2,357
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$2,000
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Infringement Notices
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$0
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$1,850
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$0
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$10,674
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$95,640
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$82,000
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Table
1: Costs associated with the implementation of the 2015 Bylaw
25 Installation of new
signs at a cost of $24,691 will not be incurred in future years. Excluding the
cost of signs, it is expected that remaining expenditure in the 2015/16 year
will be recouped by infringement revenue.
Infringement Notices
26 A total of 515
infringement notices were issued between 14 November 2015 and 30 April 2016, of
these.
· 296
were issued to non-self-contained vehicles parked in restricted areas.
· 140
were issued to vehicles parking outside of the designated area at Ocean View.
· 77
were issued to vehicles camping in prohibited zone areas on Otago Peninsula.
· 2
were issued to vehicles camping for more than 2 consecutive nights.
27 Of the infringement
notices, 139 exemptions were granted for reasons including poorly displayed
self-contained vehicle warrants, initial poor signage at Ocean View, and
unclear or incorrect information recorded on infringement notices.
28 Staff directed
enforcement officers to take a consistent approach when issuing infringements
and to uphold the conditions and restrictions of the bylaw.
Revenue
29 Council has
received $75,200 in revenue from the 376 infringements paid, equating
to 64% collection rate. The remaining 134 notices (valued of $26,800)
are either still within the first 28 day payment period, being issued
with their first reminder notice or lodged with the court for processing.
Future Revenue Options
30 Charging
campers a small fee to stay at the two unrestricted sites (Warrington and Ocean
View) has been discussed by staff throughout the season with a view to any
income being used for additional infrastructure.
31 The Freedom
Camping Act 2011 (section 5(3)) does not enable local authorities to charge or
take a donation to assist with the provision of infrastructure for freedom
camping. Options around community driven projects that campers could
contribute to or donate to may be an option to investigate ahead of the
2016/2017 season.
32 The potential
introduction of any fee or donation collection will need to be considered in
light of the purpose of freedom camping and the impact on camp grounds.
33 Central
government also announced in May 2015 a $12 million dollar fund for small
communities to build toilets, signs and van parks to cope with freedom campers
in particular. The fund will be spent over four years and will likely be
administered by government and private sector representatives. As further
details on the fund emerge staff will monitor and assess Council's
eligibility.
Additional Unrestricted Sites
34 Feedback was
received that an additional location for unrestricted freedom campers is
required to assist in managing volume. At the time of the bylaw review staff
investigated appropriate areas which were easily accessible, appealing and had
infrastructure in place.
35 To implement a new
site by the 2016/2017 season, an appropriate site would need to be identified
and its significance assessed. Dependant on the level of significance, public
consultation may be required to amend Schedule C of the bylaw.
New Zealand Responsible
Camping Forum
36 Staff attended the
New Zealand Responsible Camping forum in April 2015 with freedom camping media
and technology providers, tourism industry representatives, rental vehicle
operators and local and central government staff. A number of common issues
were discussed including demands on local infrastructure, enforcement policies,
education at entry gates, land ownership challenges, data and research
opportunities and the current Freedom Camping Act.
37 The New Zealand
Motor Caravan Association (NZMCA) presented issues with the current certified
self-contained standards. The NZMCA is intending to work with rental companies
to review the current standards for certified self-contained vehicles.
38 Tourism Holdings
Limited and rental operators expressed a desire to work with Council's
enforcement programmes to assist in collection of unpaid infringements by
'tagging' the vehicles instead of the driver. This would enhance the ability of
Councils to collect fine revenue.
Community Board Feedback
39 The Community Boards
most affected by freedom camping activities have agreed on the use of an
enforcement service provider and support the continued use to ensure the
freedom camping activity is managed effectively.
40 The Saddle Hill
Community Board (SHCB) monitored the Ocean View site closely and advised that
the external sink and recycling bins installed were of assistance.
41 The SHCB engaged
with local residents during the public consultation before the bylaw was
adopted and throughout the season. The majority of the community is supportive
of the Ocean View freedom camping area as long as it is enforced, kept clean
and the infrastructure can cope with the demands. There were concerns raised
about the volume of campers within the designated area and if this was a health
and safety issue. This will need to be continually monitored in coming
seasons. The SHCB acknowledged the need for further unrestricted
designated site and have identified options for staff to investigate
further.
42 The Otago Peninsula
Community Board (OPCB) has confirmed the bylaw is working well in its community
and improvements to signs have assisted. Small pockets of litter and additional
signage concerns have been raised and these will be addressed by staff over the
next season. The OPCB has further advised that larger campervans and motorhomes
are causing traffic and parking issues at visitor attraction car parks, but
this is not directly associated with the bylaw.
43 The Waikouaiti Coast
Community Board (WCCB) has confirmed it is generally supportive of freedom
camping but request that toilet and litter infrastructure at the Warrington
Domain is upgraded to cope with the demands created by the designated
unrestricted freedom camping site. Additional signs and road markings have also
addressed safety issues in accessing the site.
OPTIONS
44 Not applicable.
NEXT STEPS
45 Staff will
investigate options for providing additional infrastructure for Warrington and
Ocean View, firstly from within existing budgets.
46 Staff will also
investigate the appropriate management of enforcement contracts for next
season.
47 The monitoring of
freedom camping apps and working closely with Community Boards will continue as
part of the ongoing management of freedom camping.
48 Staff will continue
to work and engage with the New Zealand Responsible Camping Forum.
Signatories
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Author:
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Jendi Paterson - Recreation Planning and Facilities
Manager
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Authoriser:
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Ruth Stokes - General Manager Infrastructure and
Networks
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Attachments
There are no attachments for
this report.
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SUMMARY OF CONSIDERATIONS
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Fit with purpose
of Local Government
This report relates to providing a regulatory function and
it is considered good-quality and cost-effective.
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Fit with strategic
framework
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Contributes
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Detracts
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Not applicable
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Social Wellbeing Strategy
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☐
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☐
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☒
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Economic Development Strategy
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☒
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☐
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☐
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Environment Strategy
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☒
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☐
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☐
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Arts and Culture Strategy
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☐
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☐
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☒
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3 Waters Strategy
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☐
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☐
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☒
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Spatial Plan
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☐
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☐
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☒
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Integrated Transport Strategy
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☐
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☐
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☒
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Parks and Recreation Strategy
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☒
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☐
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☐
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Other strategic projects/policies/plans
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☐
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☐
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☒
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The bylaw is consistent with a number of strategies as it
balances the economic benefits of camping and the need to provide for this
activity, with controls in place to manage the effectives on the environment
and communities.
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Māori Impact
Statement
The Otākou Runaka has an interest in the Pukekura
Reserves at Taiaroa Head which remains a prohibited site for any freedom
camping activity under the bylaw.
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Sustainability
Freedom campers and visitors to the City provide economic
benefits which need to be balanced with potential effects on the environment
and our communities.
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LTP/Annual Plan /
Financial Strategy /Infrastructure Strategy
Not applicable
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Financial
considerations
Costs incurred for one off implementation requirements of
the bylaw where covered from existing operating budgets. As per the report
annual enforcement costs are proving to be self-funding, however increased
infrastructure requirements will need to be carefully considered against
existing spending priorities.
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Significance
Not applicable
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Engagement –
external
Communication and engagement with community groups and
organisations, local businesses and Community Boards remains a key driver to
the success of the bylaws implementation.
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Engagement -
internal
Consultation with the Transport, iSite and Enterprise
Dunedin has been ongoing throughout the season.
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Risks: Legal /
Health and Safety etc.
No identified risks
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Conflict of
Interest
No conflicts of interest.
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Community Boards
Communication and liaising with the Otago Peninsula,
Waikouaiti and Saddle Hill Community Board's has been regular throughout the
2015/1016 season.
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Planning and Regulatory
Committee
7 June 2016
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Planning and Regulatory Non-Financial Activity
Report for the Quarter Ended 30 March 2016
Department: Community and Planning
EXECUTIVE SUMMARY
1 This
report updates the Committee on activities including city planning, resource
consents, building services, alcohol licensing, environmental health, animal
control and parking enforcement.
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RECOMMENDATIONS
That the Committee:
a) Notes the Planning
and Regulatory non-financial
activity report for the quarter ended 30 March 2016.
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BACKGROUND
2 The
Community and Planning group of activities works with other agencies to set the
direction for managing Dunedin’s built and natural environment, and is
responsible for promoting the sustainable management of the natural and
physical resources through its administration of the functions of the Council
under the Resource Management Act 1991 (RMA).
3 Regulatory
Services contributes directly to the Safe and Healthy City outcome and enhances
personal safety in relation to building services, animal services, health
licensing, the sale and supply of alcohol and parking enforcement.
DISCUSSION
Service and Satisfaction
4 The
Residents’ Opinion Survey is the principal mechanism by which the Council
measures resident satisfaction with a wide range of its activities.
5 The
following graph show key results from the past four annual Resident Opinion
Surveys (2011/12, 2012/13, 2013/14 and 2014/15) relevant to the Community and
Planning group of activities.
6 From
May 2016 the Residents’ Opinion Survey will be conducted on a continuous
basis throughout the year and results will be reported to the Committee on a
quarterly basis.
7 A
3% decrease in satisfaction with the ‘overall look and feel of the
city’ was reported in 2014/15 compared to 2013/14 (although this may not
be significant given the survey margin of error of +/- 2.9%).
8 Other
survey results indicate that residents are least satisfied with the ‘look
and feel’ of Central City and South Dunedin retail areas. These areas
have been prioritised for investment by the Council.
Value and Efficiency
9 Throughout
2015/16 the Resource Consents team has achieved 100% compliance with the
processing of resource consents within statutory timeframes.
10 The
number of building consent applications in progress was significantly higher in
the quarter to 31 March 2016 compared to the same period in the prior year.
In the three months to 31 March there was also a 16% increase in the value of
building work for which consent was sought compared to the same period in the
prior year.
11 The building consent
processing team are currently below full staff compliment and are therefore
recruiting additional processing officers. To bring the processing times
back to less than 20 working days we are offering over time to all employees,
outsourcing applications to external contractors and engaging contractors to
work in-house.
12 Data
on the number of licenced premises monitored, and the percentage of which are
compliant with licences is provided below.
13 The
increase in 'A' graded food premises over the quarter ending March 2016 is
likely due to the new Food Act 2014 coming into force on 1 March 2016. Over 80%
of Dunedin food premises are now operating under the new risk based management
system, enabling them to implement higher food safety standards.
14 The
number of Animal Services customer requests received over the quarter ending
March 2016 was fairly consistent with the corresponding quarter of the previous
year. Requests concerning animal behaviour received over March 2016 were
lower than the corresponding month of the previous year. This could be
due to the activity’s emphasis on public messaging on safety around dogs.
15 Each year the number
of parking infringements generally reduces over the Christmas and New Year
period and increases through February and March. The number of
infringements issued was slightly lower due to a staff vacancy and taking of
leave.
16 Abandoned vehicle
complaints were higher in the three months to 31 March 2016 than the
corresponding period last year, with lower steel prices a likely factor.
Blocked vehicle entrances have also accounted for a greater number of
infringements, possibly as a result of greater awareness of the availability of
enforcement following publicity about this issue.
Major Initiatives
17 Second
Generation District Plan (2GP) – The
2GP programme moved from the submission to hearings stage. Council
received submissions from 1,504 submitters covering some 10,917 submission
points. The hearings panel, chaired by Commissioner David Collins, has
completed the first three hearing topics.
18 Central City Plan - A confirmed Central City Plan project management structure is in
place, allowing for the planning and consultation phase to move ahead once a
programme manager is appointed. Council approved a revised commencement
date for implementation of physical works and a budget for the programme
manager during the Annual Plan deliberations to align with this new project
management structure.
19 Food
Act – Environmental Health is currently involved in the
implementation of the Food Act, which came into effect on 1 March and has a
transition phase over the next three years. Environmental Health recently
achieved accreditation from the Ministry for Primary Industries for its quality
management system following an on-site assessment, meaning Environmental Health
can now verify National Programme food operators. Significantly, Dunedin is the
first council to gain accreditation and the team will assist customers with the
transition to the new requirements.
Capital Projects
20 No
major capital projects are being undertaken across the Community and Planning
or Regulatory Services groups.
OPTIONS
21 As this is an update
report there are no options.
NEXT STEPS
22 A pilot of the use
of Case Managers for customers wishing to start or develop small businesses
which require interaction with a number of Council departments commenced in
February and will conclude in July. Progress with the pilot has been
promising with positive feedback from customers who have participated, however
a full evaluation will be completed.
23 2GP
hearings will continue with around one third scheduled to be completed by the
end of June. The major topic will be the plan overview.
24 Central City Plan physical upgrade works will continue in the
Warehouse Precinct, including a tender for amenity works in Jetty Street.
Works in Bond Street and the area between Rattray Street and Liverpool Street
are in planning and will be consulted on in mid-2016. Relationship
building, information gathering, research, and consultation will be the focus
for the Central City team to replicate the positive and collaborative outcomes
achieved in the Warehouse Precinct.
Signatories
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Author:
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Bill Frewen - Senior Policy Analyst
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Authoriser:
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Simon Pickford - General Manager Services and
Development
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Attachments
There are no attachments for
this report.
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SUMMARY OF CONSIDERATIONS
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Fit with purpose
of Local Government
This report relates to providing a public service and it
is considered good-quality and cost-effective.
|
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Fit with strategic
framework
|
|
Contributes
|
Detracts
|
Not applicable
|
|
Social Wellbeing Strategy
|
☒
|
☐
|
☐
|
|
Economic Development Strategy
|
☒
|
☐
|
☐
|
|
Environment Strategy
|
☒
|
☐
|
☐
|
|
Arts and Culture Strategy
|
☒
|
☐
|
☐
|
|
3 Waters Strategy
|
☐
|
☐
|
☒
|
|
Spatial Plan
|
☒
|
☐
|
☐
|
|
Integrated Transport Strategy
|
☒
|
☐
|
☐
|
|
Parks and Recreation Strategy
|
☒
|
☐
|
☐
|
|
Other strategic projects/policies/plans
|
☒
|
☐
|
☐
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The Planning and Regulatory portfolio of activities
support the outcomes of a number of strategies.
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Māori Impact
Statement
There are no known impacts for tangata whenua.
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Sustainability
As an update report, there are no specific implications
for sustainability.
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LTP/Annual Plan /
Financial Strategy /Infrastructure Strategy
As an update report there are no implications for the LTP,
although some measures are level of service performance measures annually
reported as part of the LTP.
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Financial
considerations
The updates reported are within existing operating and
capital budgets.
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Significance
This decision is considered of low significance under the
Significance and Engagement Policy.
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Engagement –
external
As an update report no external engagement has been
undertaken.
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Engagement -
internal
As an update report no internal engagement has been
undertaken.
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Risks: Legal /
Health and Safety etc.
There are no identified risks.
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Conflict of
Interest
There is no conflict of interest.
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Community Boards
Not applicable.
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