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Community Services Committee
9 May 2023
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Freedom Camping 2022/2023 End Of Season Report
Department: Parks and Recreation
EXECUTIVE SUMMARY
1 This
report provides a summary of 2022/23 freedom camping season statistics
(Attachment A).
2 Data
collected during nightly compliance patrols showed an increase in freedom
camper numbers returning to Dunedin during the 2022/23 camping season following
two seasons in which visitor numbers were significantly impacted by Covid-19
and associated travel restrictions.
3 Fifteen
thousand, one hundred and twenty-nine (15,129) freedom camping vehicles were
counted across Dunedin City during the period 1 November 2022 to 19 April
2023. During this period, 171 Camping Control Bylaw 2015 (the Bylaw)
infringement notices were issued and 55 complaints regarding freedom
camping were made to Dunedin City Council (DCC) staff.
4 Staff
are anticipating changes to freedom camper management once the Self-Contained
Motor Vehicles Legislation Bill is enacted.
5 Nightly
compliance patrols will be reduced during the 2023/24 season in response to
improvements in Bylaw compliance over successive seasons.
RECOMMENDATIONS
That the Committee:
a) Notes the Freedom Camping 2022/23 End of Season Report.
BACKGROUND
6 Freedom
campers visit the city throughout the year; however, the freedom camping
‘season’ is from 1 November to 30 April each year. It is
during this time the greatest number of campers visit the city.
7 In
the early 2000s, the number of freedom campers visiting the city started to
increase. During the 2003/04 camping season, DCC commissioned a research
project to investigate the number and impact of freedom camper visitors to the
Otago Peninsula.
8 That
research informed the Reserves Bylaw, which was adopted in April 2005 (Reserves
Bylaw 2005). That Bylaw prohibited camping on any reserve, unless it was
set aside for that purpose.
9 In
the following years, in response to the increasing number of freedom campers
visiting and a corresponding increase in the number of freedom camping related
complaints, Council adopted the Camping Control Bylaw (made under the Local
Government Act 2002) and the Freedom Camping Policy.
10 In
2013, a revised Camping Control Bylaw 2013 and Responsible Camping Policy was
adopted by Council. This permitted camping in certified self-contained
vehicles across Council-owned parking spaces and permitted camping in
non-self-contained vehicles at MacAndrew Bay carpark, Warrington Domain and
Ocean View Reserve (unrestricted sites). It was recommended that these
sites were trialled and reviewed after two camping seasons.
11 After
the first season operating under the Camping Control Bylaw 2013, significant concerns
were raised by members of the Peninsula community in relation to campers
staying at the MacAndrew Bay carpark. In response, staff completed a
consultation process on alternative or additional trial sites to alleviate
pressure on the Otago Peninsula. A proposal to trial the Bayfield Park
carpark as an additional unrestricted site was abandoned.
12 A
further revision of the Camping Control Bylaw was adopted in 2015. That
version of the Bylaw was made under the provisions of the Freedom Camping Act 2011.
It permitted unrestricted freedom camping at the Warrington Domain and Ocean
View Reserve and camping in certified self-contained vehicles at other
Council-owned parking areas, outside of scheduled prohibited zones. The
Bylaw also provides for warranted enforcement officers to issue $200
infringement notices.
13 In
July 2017, in response to ongoing complaints and concerns raised by residents,
a Special Consultative Procedure, including public submission and Bylaw
Subcommittee Hearing was undertaken.
14 In
August 2017, the Bylaw Subcommittee recommended changes to the Camping Control
Bylaw to Council limiting freedom camping to certified self-contained vehicles
only. However, Council did not accept these recommendations.
15 Between
2018 and 2020, a trial was undertaken during the camping seasons, of the Thomas
Burns Street carpark as an unrestricted freedom camping site. The site
was trialled in an effort to reduce pressure on the Warrington Domain and Ocean
View Reserve unrestricted sites.
16 Following
the trial of Thomas Burns Street carpark as an unrestricted freedom camping
site, in June 2020 a further review is undertaken of the Camping Control Bylaw
2015. Due to the success of the trial, it was recommended an amendment
was made to the Bylaw to include the Thomas Burns Street carpark as an
additional unrestricted freedom camping site. Council approved a
Statement of Proposal, draft amended Bylaw and public submission form to allow
staff to begin public consultation.
17 In
October 2020 Council approved the proposed amendment and the Thomas Burns
Street site was included as an unrestricted site under Schedule C of the Bylaw.
18 The
Bylaw permits freedom camping in certified self-contained vehicles on
hard-stand (gravelled or sealed) DCC parking spaces, excluding scheduled
prohibited areas. The Bylaw also provides freedom camping for all vehicle
types at three unrestricted sites: the Warrington Domain, Thomas Burns Street
carpark and Ocean View Reserve. Camping is permitted for up to two
consecutive nights at all sites and campers must obey on-site signage to be
Bylaw compliant.
19 During
the 2019/20 camping season Community Rangers conducted a survey of 360 freedom
campers staying at DCC sites. Results from the survey indicated that, on average,
campers stayed 2.7 days in Dunedin and spent $85.94 per person, per day.
By factoring the number of campers counted by enforcement patrols, staff
estimated that freedom campers contributed $3,700,000 to the Dunedin economy
during the 2019/20 season. Campers tended to be younger, with those aged
between 25 and 34 years of age making up 50% of survey respondents.
Campers were primarily first-time visitors to Dunedin (82%), European (68%) and
came ‘to explore the city and its attractions’ (65%). The
Thomas Burns Street unrestricted site was favoured by respondents due to its
proximity to shops and services.
Management
of the Camping Control Bylaw
20 Freedom
camping compliance officers patrol known camping sites nightly. If non-compliance
is encountered, Compliance Officers may issue Camping Control Bylaw
infringement notices for offences. Officers also gather data on the
number of overnight camping vehicles staying in DCC parking spaces.
21 In
addition to the freedom camping compliance programme, DCC in partnership with
the Department of Conservation (DOC), employs three Community Rangers (between
21 October and 30 April) in a joint education initiative. The Community
Rangers visit known freedom camping sites during the day, to provide campers
with Bylaw information. The seasonal Community Ranger programme has
been operational since 2018.
22 The
DCC received $54,000 from the Ministry of Business Innovation and Employment
toward funding the 2022/23 Community Ranger programme under the Freedom Camping
Transition Fund.
DISCUSSION
23 Both
the Community Ranger programme and the camping compliance programme gather data
on camper numbers and behaviour. These data sets inform future management
programmes.
24 Enforcement
officers counted 15,129 vehicles freedom camping on DCC parking spaces during
the 2022/23 season. This was a 179% increase in vehicles counted during
the 2021/22 season (5,419 vehicles counted) and a 34% increase in vehicles
counted during the 2020/21 season (11,320 vehicles counted). Freedom
camping vehicles peaked during the 2018/19 season (26,132 vehicles counted)
with successive seasons being impacted by Covid-19 and associated travel
restrictions.
25 The
DCC’s three unrestricted freedom camping sites remained popular with
campers and accommodated 8,494 (54%) of the vehicles counted. The
Warrington Domain was the most popular with 4,019 vehicles; the Thomas Burns
Street carpark accommodated 2,476 vehicles and the Ocean View Reserve, 1,999
vehicles.
26 The
Brighton Domain and Kensington Oval were the most popular restricted sites with
2,068 and 1,624 vehicles counted, respectively. Vehicles staying at
restricted sites must display an NZS 5465:2001 self-containment certificate to
be Bylaw compliant.
27 The
total number of vehicles displaying self-contained certificates was
10,185. Of these, 5,917 stayed at unrestricted freedom camping sites.
28 One
hundred and seventy-one notices (171) were issued for Bylaw infringements
during the 2022/23 season. This was an increase from 36 infringement
notices issued during the 2021/22 season and 133 notices issued during the
2020/21 season. Infringement notices peaked during the 2018/19 season
with 682 issued.
29 The
recipient of an infringement notice may request the notice to be waived by
providing a written explanation of the circumstances in which they were
infringed. During the 2022/23 season, 48 of the 171 notices issued were
waived. Of the upheld 123 notices, 63 have been paid ($12,600) and 60 are
currently unpaid ($12,000). A reminder notice is sent to campers one
month after a notice is issued. If notices remain unpaid for a further
month the notice is transferred to the Ministry of Justice for collection
through the court process.
30 A
Bylaw compliance rate can be determined by considering seasonal camper numbers
with infringements issued. During the 2022/23 season 98.9% of campers
counted were compliant. There has been an increasing trend in Bylaw
compliance since this was first measured during the 2017/18 season, in which
97.5% of campers were compliant.
31 Infringement
notices were mostly issued to campers who stayed more than the permitted two
consecutive nights (103 notices issued) and to campers staying in restricted
areas without displaying a valid self-containment certificate (49 notices
issued). Most infringements occurred within the Dunedin CBD/South Dunedin
area in which 104 (61%) notices were issued.
32 During
the 2022/23 season, 55 complaints were received regarding non-compliant freedom
camping. This equates to 0.4 complaints per 100 freedom camping vehicles
counted. There has been a decreasing trend in the complaint rate since
the 2018/19 season in which 179 complaints were received (0.7 complaints per
100 vehicles counted).
33 Year-to-date
(31 March 2023) freedom camping enforcement costs totalled $123,691.
34 With
the continued increasing compliance and the corresponding downward trending of
freedom camping related complaints, PARS have programmed a reduced compliance
programme for the 2023/24 freedom camping season.
35 The
compliance programme will include a reduced nightly patrol between 18 December
2023 to 17 March 2024 (peak season), which equates to a 50% reduction in
nightly patrols throughout the season. Freedom camping enforcement officers
will remain available to respond to individual complaints outside this period.
36 The
Community Ranger programme will continue to provide freedom camping information
to campers daily, from 21 October 2023 to 30 April 2024.
Legislation
37 The
Self-Contained Motor Vehicles Legislation Bill was introduced to Parliament on
25 August 2023 and is progressing through the legislative process. This is an
omnibus bill, which amends the Freedom Camping Act 2011 and the Plumbers,
Gasfitters and Drainlayers Act 2006 in an effort to reduce negative impacts of
freedom camping. The major changes the Bill makes are:
a) Require
vehicle-based freedom campers to use a certified self-contained vehicle when
they stay on council land. This is unless the council designates the site as
suitable for non-self-contained vehicles.
b) Establish
a regulated system for the certification and registration of self-contained
vehicles.
c) Require
vehicles to have a fixed toilet to be certified self-contained.
d) Strengthen
the infringement system.
e) Extend
the Freedom Camping Act to include land managed by Waka Kotahi New Zealand
Transport Agency and Toitū Te Whenua Land Information New Zealand.
38 The
DCC made a submission to MBIE that generally supported the proposed changes but
expressed concern that the requirement for vehicles to have a fixed toilet to
be certified self-contained, may lead to an increase in demand for use of
DCC’s unrestricted freedom camping sites.
OPTIONS
39 As
this is a noting only report, no options are presented.
NEXT STEPS
40 Nightly
enforcement patrols will be reduced to a three-month period during the upcoming
2023/24 camping season. Nightly patrols will be programmed to run from 18
December 2023 to 17 March 2024. Complaints will be responded to outside
this period.
41 Staff
will monitor the impact of the Self-Contained Motor Vehicles Legislation Act on
freedom camping.
Signatories
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Author:
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Scott MacLean - Group Manager Parks and Recreation
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Authoriser:
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Simon Pickford - General Manager Community Services
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Attachments
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Title
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Page
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⇩a
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Freedom Camping 2022/23
Statistics
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28
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SUMMARY OF CONSIDERATIONS
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Fit with purpose
of Local Government
This report allows communities to be informed of
decision-making that effects their social, economic and environmental
well-being.
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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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Economic Development Strategy
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Environment Strategy
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Arts and Culture Strategy
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3 Waters Strategy
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Spatial Plan
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Integrated Transport Strategy
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Parks and Recreation Strategy
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Other strategic projects/policies/plans
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☐
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Māori Impact
Statement
The management of the freedom camping programme and the
Camping Control Bylaw 2015 (and any subsequent amendments), does not limit or
affect the rights in relation to nohaonga entitlements under the Ngai Tahu
Claims Settlement Act 1998.
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Sustainability
Effective monitoring and management of freedom camping is
necessary to ensure positive outcomes with regard to social and environmental
sustainability.
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LTP/Annual Plan /
Financial Strategy /Infrastructure Strategy
The operational costs of managing freedom camping are
currently provided for in the 10-year plan 2021-2031.
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Financial
considerations
There are no financial considerations as this report is
for noting only.
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Significance
The findings within this report are considered low in
terms of the Council’s Significance and Engagement policy.
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Engagement –
external
There has been no external engagement.
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Engagement –
internal
Parks and Recreation Services engage directly with the
Customer Services Agency, Fleet Services, Communications and Marketing departments
during the freedom camping season.
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Risks: Legal /
Health and Safety etc.
There are no known risks identified.
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Conflict of
Interest
There are no known conflicts of interest.
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Community Boards
Freedom camping sites are located throughout the
city. Community Boards work closely with staff in identifying and
resolving freedom camping issues when these arise in their communities.
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