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Overview of the Council Roadside Environmental Management Framework
How to Use This Presentation This presentation can be used directly or edited and adapted with acknowledgement of the original authors. Speaker notes are provided as a prompt to explain the slide content. These are optional and may be adapted by the presenter to suit specific Council application. Speaker notes refer to Council Roadside Environmental Management Framework (CREMF). It is strongly recommended that presenters read the CREMF and are familiar with content in the associated materials. Speaker Notes: This presentation provides a summary of the Council Roadside Environmental Management Framework. The Framework has been developed by Eco Logical Australia on behalf of LGNSW with funding from the NSW Environmental Trust. The Framework is designed to integrate the current best practice roadside vegetation management into Council’s IP&R process. The intent is to embed management of the natural assets located in roadside reserves with Council’s other asset management. Funding is available in contestable grants to streamline procedures to the long term benefit of natural resource management. This presentation introduces the Framework that is documented in detail in: The Council Roadside Environment Management Framework document and the associated Tools and materials that have been developed Developed on behalf of LGNSW for the Council Roadside Reserve Project
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Introduction The framework was developed to;
Embed roadside environmental management into the Integrated Planning and Reporting (IPR) process Improve use of environmental data in managing roadsides Support Councils applying for funding under the Council Roadside Reserve Project This presentation provides An introduction to the Framework An overview of the tools, case studies and support materials designed to assist Council in the implementation of the Framework. The approach is designed to mainstream roadside environmental management into councils’ overall service delivery and asset management planning responsibilities. Embedding roadside environmental management in IP&R has the benefit of linking strategic planning, natural asset management, risk management, built asset maintenance, state of the environment reporting and budgeting cycles. Each Council is different, with different capacity and systems already in place. Therefore elements of the framework may be adapted to your specific situation. Many Councils already have Roadside Vegetation Management Plans and may be focused on implementation or review. There are some key fundamentals to improving strategic management of roadside environments within the Framework. It is very important to use a data driven evidentiary base for planning natural resource management. Here LGNSW has worked with NSW Local Land Services to develop a standardised field survey technique to rank conservation value of roadsides. The framework also provides for a risk management approach to delivering Council services within the roadside environment. A key risk for Councils is non compliance with legislative responsibilities. This was identified in preliminary consultation as a key driver for Councils in managing roadside environments. Therefore another key element of the Framework is an explanation of legal considerations for Council managers. Chapter 3 introduces Roles and Responsibilities of Council, Roads and Maritime Services and other stakeholders. Chapter 4 covers the range of laws that apply to management of roadsides and likely activities. Chapter 6 introduces strategic planning considerations within the NSW context. Chapter 7 assists Councils in assessing potential impacts to environmental values from routine management activities and new design and construction works in the roadside environment. This builds on substantial information from NSW RMS and is covered in this Framework in response to Council feedback from surveys of barriers to improved environmental management in NSW roadsides. There are a number of information tools including look up tables, report templates, case studies and links or references for more information.
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The Roadside Environment Setting
Councils own or are responsible for a significant amount of the 2.5 million hectares of roadside vegetation in NSW A Roadside Reserve is defined as the entire width of the road corridor (fence to fence or boundary to boundary) The corridor includes road infrastructure, roadside furniture, associated drainage, and verge area that may contain native vegetation, fauna habitat or heritage items Management must balance competing values: road safety, conservation, heritage, bushfire, recreation, firewood collection and other uses Local Government are responsible for the management of regional and local roads as well as some state roads under contract to NSW RMS. Roadside reserves are managed by Local Government and Local Land Services Roadside reserves are a complex environment to work in due to competing values and issues, and councils are responsible in this regard to consider: road safety, conservation, cultural values, firewood collection, bushfire risk, legal requirements, recreational use and development pressures. Yet road and infrastructure delivery is often the number one community priority for Council to deliver. So how can Council deliver roadside environmental management when it is under resourced to deliver road infrastructure needs and environment management demands are competing for available resources? The solutions lie in an integrated approach that provides a fresh perspective on the strategic management of priority assets and aligns this asset management with Council’s other routine asset management. Furthermore Council is obligated to consider and avoid environmental impacts under NSW legislation, and this applies in roadside environments as much as elsewhere. Here some additional guidance is provided around the careful balancing act of addressing road safety and Council’s due diligence for environmental management. To assist NSW Councils in improving management of environmental values in roadsides, LGNSW has secured Environmental Trust funding to support strategic management for this 2.5 million hectare public asset.
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Council Roadside Vegetation Management: - the Status Quo
Council consultation found: Innovative approaches to roadside vegetation management But also Inconsistent uptake by Councils Low priority at all levels of the organisational structure Organisational thinking/silos Different languages for “asset management” and “natural asset management” Lack of ownership and accountability for environmental outcomes in roadside reserves Local government stakeholders have identified barriers to consistent, long-term management of roadside environments. Key barriers include the challenges of integrating natural and built asset management procedures, funding consistency, separation of staff responsibilities and access to applied resources. Stakeholders have highlighted the need to embed roadside environmental management into councils’ Integrated Planning and Reporting (IP&R) framework to help address some of these barriers. IP&R starts with community values and aligns Council’s policies, strategic planning, Resourcing Strategy, Delivery Program (4 years), Operational Plan (1 year), community engagement strategy, annual report and state of the environment report to these community values. So to effectively embed roadside management it is important to identify links to community values and interests. Provision of road infrastructure is frequently a key concern raised in consultation around IP&R. Supporting a vibrant diverse economy and maintaining a healthy productive environment are also strong community concerns. Activities that benefit and support community values are more likely to attract investment. In following the IP&R process in Council Roadside Environment Management, managers are stepped through a logical sequence of vertically integrated plans to deliver on community concerns. Integrating roadside environment with other council asset management affords streamlined processes and should also help identify cost savings.
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Solutions The framework provides an overarching structure to improve environmental management of road reserves = Council Roadside Environmental Management Framework Support materials: case studies, templates, decision support tools, introductory training slides = CREMF Tools Provides flexibility for self assessment and adaptation to specific council needs Funding applications for up to $50,000 to support improved, strategic management of roadside environments The intent of this framework is to provide a strategic framework to improve long term, sustainable management of roadside environments. As mentioned there are two primary drivers: the legislative requirements on Councils and newly developed standardised survey protocol to identify and rank conservation values in roadsides. The framework is introduced in the CREMF report and a diagrammatic overview shown in Appendix 1. There are a number of existing resources and innovative approaches available. For example the Hunter Central Coast Roadside Environmental Management System Environmental Resource Kit and the NSW Roadside Environmental Committee Fact Sheets. These are referenced throughout the CREMF report particularly where they fit within the Framework to integrate roadside environmental management in IP&R, as well as a resource compendium included in Appendix E. In recognition of the variation across Councils, the framework allows for discrete uptake of specific initiatives with the long term goal to improve strategic management of roadside assets. Appendix D includes a self assessment prompt to help Councils identify where their strategic efforts are best placed for maximum environmental outcome. For example “Is roadside vegetation management responsibility clearly understood across various council departments?” if not, consider investment in training materials or engagement strategies to get better alignment and more effective service delivery. Don’t forget vertical management includes understanding (or appreciation of your efforts) by elected representatives, senior management through to works staff.
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Why Should Council Manage and Protect the Natural Values of Roadsides?
Legislation and regulations Manage risk of non compliance Cost/benefit Cost savings in integrated site management Reduce conflicting management responses Improve service delivery Community values (starting point of IP&R) Wildlife habitat, conservation of rare vegetation Scenic amenity, shade, recreation Heritage assets Infrastructure provision + local identity + tourism Why should Council care about this issue? Council is obliged to avoid detrimental impacts to the environment through its actions or decisions. The term environment includes matters of national environmental significance, state listed species, populations or communities, regionally restricted species or vegetation communities as well as functioning healthy ecosystems. The more significant the environment, the higher the consequences if impacts are realised. How can Council identify significant environments in roadside reserves? The rapid assessment method is a new tool to assist in standardised data collection and interpretation. In addition to avoiding loss, Council is also required to protect environmental values on public land under Section 36e Local Government Act. A third important motive to improve roadside management is that a number of roadsides support remnant vegetation not found in cleared landscapes – both in urban and rural contexts. A note on safety: Roadside vegetation has been found to contribute to reducing road accidents by decreasing headlight glare, reducing driver monotony and highlighting road delineation. RMS procedures recommend a staged environmental assessment approach for all clearing including works undertaken for road safety. As well as the environmental benefits, there are also potential productivity benefits to maintaining healthy roadside vegetation. 1. In rural localities roadside vegetation has been found to benefit adjacent agricultural production by providing shelter belts and reducing salinity encroachment. 2. Scenic amenity contributes to a sense of place for residents and visitors alike.
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Schematic Representation of Managing Roadside Environment within the IP&R Framework
This is a schematic representation of the framework which is built on the classic IPR pathway
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Natural Asset Management
Applying an asset based approach is the key to this framework Built asset = road infrastructure Natural asset = plants, animals and soil and water systems Natural assets appreciate with management over time, built assets depreciate (more slowly with management) Arguably natural assets cannot be replaced To be maintained or enhanced natural assets need to be valued and resourced in the same way as built assets Speakers Notes The valuing and managing of natural assets within IPR principles is a new and emerging area. (Extract CREMF report, Chapter 2.5): While the road infrastructure may be considered as a built asset, the roadside reserve containing vegetation, and other natural features may be considered as a natural asset. Within a local government strategic planning framework, areas of biodiversity can be considered as ‘natural assets’. Natural assets can be defined as soil, water systems, plants and animals from which ecosystem services flow to provide financial, cultural and ecological benefits. Natural assets will appreciate with management over time. In contrast built assets depreciate more slowly with management but will eventually require replacement. Arguably, natural assets cannot be replaced. A search of research literature and practitioner forays reveals two distinct approaches to natural assets; qualitative asset management and quantitative asset management. Whilst there is a growing body of research into quantitative approaches, their application in IPR is fledgling. Several councils are grappling with this challenge. Meanwhile, the logic of a natural asset management approach is compelling and makes sense for Councils seriously tackling their future maintenance costs as well as protecting valued community assets. Chapter 2.5 outlines how Councils are approaching the challenge of developing a natural asset register and provides examples from Rockdale and Blue Mountains Councils.
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CREMF Tools: Natural Asset Management
See CREMF report Section 2.5 Council guide towards developing a Natural Asset Register Natural Asset Register: Rockdale (now Bayside Council) This slide shows the tools available in the Framework to support Council in adapting its own natural asset management approach. These are akin to ‘conversation starters’. There is substantial benefit in sharing knowledge gained in this area between councils and across sections as this is a developing area. Natural Asset Service Planning: Blue Mountains
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Roads and Maritime Services
Stakeholders Road Reserves Council Roads and Maritime Services Local Land Services Rural Fire Service Community Adjacent Landholders CREMF Consultation required. Potential cost saving collaborations. Contractual arrangements may apply. Council management roles Asset management, impact assessment, data management, work site management Roads and Maritime Services (RMS) Road Maintenance Council Contract (RMCC) Local Land Services (LLS) Travelling Stock Routes (TSR), Biosecurity Rural Fire Service (RFS) Local Bushfire Risk Management Plans (BFRMP) Other organisations other councils, State Agencies, Local Aboriginal Land Councils Community Stakeholders may elevate importance of roadside habitat values, local Landcare, community monitoring and reporting (Citizen Science)
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Internal stakeholders
Elected Representatives Executive Asset Manager Property Manager(s) Planner(s) Engineer(s) Environment officer(s) Operations/Depot CREMF Define key position responsible for internal consultation and sign off for RVMP. Identify collaborators & collaboration points to align maintenance works for max benefit. Internal Council organisational roles asset manager must oversee or have comprehensive consultation and sign- off role for strategic planning document (RVMP/Operational Plan) same asset manager for roadside built asset and natural asset, with Council bushcare / environment staff having an advisory role. benefits from same asset manager in the efficient scheduling of works and reducing the risk of inadvertent impacts upon roadside natural assets resulting from works to construct/maintain built assets who assesses effectiveness of delivery?
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CREMF Tools: Collaboration
See CREMF report Section 3.1 Steps towards internal collaboration Council collaboration: Mid Coast Council cost savings in road maintenance & weed management Collaborative weed management across agencies: Snowy Valley Council This slide shows the tools available in the Framework to support Council in improving internal dialogue for the benefit of environmental outcomes and improved cost savings or capacity to deliver Council’s services in the roadside environment. Weed management is a logical ‘conversation starter’ as roads are serious vectors for weed distribution. Council is obligated to manage noxious weeds, and also struggles to resource the management of environmental weeds, yet weed suppression is a very cost effective way to aid natural regeneration in native vegetation.
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CREMF Tools: Community Engagement
See CREMF report Section 3.3 Council Guide Increasing community awareness of roadside values Community Roadside Management Handbook: Campaspe Council (Victoria) Other tools are available to address engaging broader stakeholders in managing linear assets. Environmental values are best protected tenure blind as are compound issues such as weed management. The benefits to community engagement are exponential in realising, maintaining and resourcing natural resource management.
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Garrett v Port Macquarie-Hastings Council
Legislation Potential breach of legislation is a key risk for councils & can be costly. EG. Garrett v Freeman & Garrett v Port Macquarie-Hastings Council Large range of legislation relating to the management of roadsides which a council must be aware of and demonstrate compliance with. Port Macquarie-Hastings Council prosecution of Council and senior Council manager with significant costs incurred to both
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CREMF Tools: Legal Obligations
See CREMF report Section 4 Legislation Guide for Council staff relating to roadside environmental management (Table 5) See CREMF Tools SEPP Infrastructure Flowchart: Decision support tool REF template Ecological Assessment of Council Roadside Activities Introductory training slides Site Management Checklists and Safeguards Introductory training slides
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Roadside Assessment Purpose is to
identify important roadside values such as vegetation type, condition, fauna habitat, heritage etc. minimise council risk (legislation breach) of inadvertent damage from routine maintenance works Inform infrastructure planning and design to avoid high value natural assets or minimise impacts Don’t get confused between a Roadside Environmental Assessment and a Roadside Environmental Impact Assessment. Roadside Environmental Assessment – Information on roadside ecological values includes the type and structure of vegetation present, exotic and feral species present or using the area, disturbance levels, habitat present, heritage values and site characteristics. Roadside Environmental Impact Assessment – all roadside activities including construction and maintenance requires some form of environmental impact assessment. Environmental impact assessment in this context is formal assessment required by legislation, such as the Environmental Planning and Assessment Act 1979. For example: Road works carried out by councils or other land management agencies such as Roads and Maritime Services require an environmental assessment called a Review of Environmental Factors in accordance with Part 5 of the Environmental Planning and Assessment Act 1979.
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CREMF approach 1. Rank roads for investigation
Desktop analysis/existing information 2. Field surveys Rapid Assessment Methods = new standard Assigns Conservation Score 3. Asset database (assign ID) 4. Link to Strategic Planning & Works Schedule – LEP, RVMP, road design as applicable Initially a desktop assessment is undertaken which compiles existing information from various sources including maps, reports and databases. The desktop assessment will identify potentially important sites (e.g. potential presence of remnant vegetation or threatened biota) for follow up field assessment – validation and detailed mapping. A rapid roadside assessment method is under development (see following slide). The method assigns a conservation ranking to roadside sections
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Rapid Roadside Assessment Method
Developed by consultants EcoSure, on behalf of LLS and LGNSW Designed to be a rapid “windscreen assessment” Includes an embedded conservation value assessment matrix
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CREMF Tools: Roadside Assessment
See CREMF Section 5 See CREMF Tools Case Study: Data driven approach: Wingecarribee Shire Council Note Training on Rapid Assessment Methodology under development Field Reference Maps: Tweed Shire Council Prioritisation Approaches: Hawkesbury & Blacktown The CREMF report provides an example of how roadside assessment information was used by Tweed Shire Council to develop field reference notes and maps for use by Council staff undertaking roadside works. The maps which are placed in work vehicles identify priority management zones and guidelines for activities that are suitable in each zone. Potential environmental constraints such as the location of threatened species are also identified. Other examples are provided where roadside assessment information has been used by Hawkesbury and Blacktown City Councils to rank or prioritise the conservation significance of roadside vegetation An additional example is provide in the Wingecarribee Shire Council case study where an objective, data driven GIS tool was developed by Wingecarribee Shire Council using roadside assessment data to underpin strategic roadside vegetation management based on biodiversity outcomes.
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Strategic Planning in CREMF
DCP clause Planning Guidance Policy Statement Roadside Environmental Management Policy Community Strategic Plan Community Values Operational Plan Environmental Impact Assessment, Safeguards Roadside Vegetation Management Plan Delivery Plan Other higher level plans may also apply, e.g. Weed Management Plans, Threatened Species Recovery Plans, Regional Strategies Higher level environmental plans which may relate to roadside reserve management: - Threatened Species Recovery Plans - Strategic Weed Management Plans prepared by Regional Weeds Committees e.g. TS recovery plan: the critically endangered plant Grevillea caleyi often occurs on roadside edges in the northern region of Sydney. Weeds also tend to proliferate along disturbed roadside edges
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Strategic Planning: Adopted Policy
Roadside Environmental Management Policy A statement which underpins how roadside environmental management issues will be dealt with in the organisation Addresses consistency across multiple Council responsibilities Identifies key position responsible for implementing the policy Identifies relationship to other plans & policies Adopted by elected representatives Provides internal & external guidance Councils may nominate to develop a discrete Roadside Management policy that incorporates environmental management principles, or it may review existing policies to identify where roadside reserves need to be elevated and incorporated within broader biodiversity or reserve management.
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Strategic Planning: Roadside Vegetation Management Plans
A form of LGA wide biodiversity strategy focused on natural assets in roadside reserves across the LGA Must include link back to the Community Strategic Plan and relevant council policies Identify management objectives and actions Feed into: Natural Asset Management Delivery Plan Operational Plan Preparation of an RVMP provides an opportunity to engage with a range of internal and external stakeholders on roadside management. A well-integrated plan communicates management requirements to internal council staff and to external roadside users including adjacent landholders. The consultative process recommended in developing an RVMP also becomes an engagement tool for staff from different sections to assist in delivering the plan. The management actions within the RVMP should identify the action priority, timing, responsibility and resourcing. This can be linked to councils Delivery Plan and Operational Plan.
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CREMF Tools: Strategic Planning
CREMF report Section 6 CREMF Tools RVMP Template with IPR links Roadside Policy: Hunter Central Coast Councils, Maitland Council, Tatiara Council (South Australia) Road Network Management System: Kyogle Council Guide to integrating roadside environment management in IPR Example clauses: Table 8
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Impact Assessment and Approvals
NSW Roads Act 1993, Section 88 A roads authority may, despite any other Act or law to the contrary, remove or lop any tree or other vegetation that is on or overhanging a public road if, in its opinion, it is necessary to do so for the purpose of carrying out road work or removing a traffic hazard RMS recommend All roadside activities including construction/widening and maintenance require some form of environmental impact assessment
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Commonly used environmental impact assessment documents:
Activities that are permissible without consent under the State Environmental Planning Policy (Infrastructure) 2007 Review of Environmental Factors (REF) – under Part 5 of the EP&A Act Statement of Environmental Effects (SEE) – under Part 4 of the EP&A Act Environmental Impact Statement (EIS) where a development is defined as designated development or likely to significantly impact on the environment (refer EP&A Act S112) Referral or Controlled Action – Under the EPBC Act. While road works carried out by councils or other land management agencies such as Roads and Maritime Services require an environmental assessment called a Review of Environmental Factors in accordance with Part 5 of the Environmental Planning and Assessment Act 1979, other developments affecting roads must be assessed in accordance with Part 4 of the Act.
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Flags In general any works undertaken in sensitive areas should be referred for expert assessment if located in: waterways areas of vegetation older than 10 years remnant vegetation with mature trees or hollow bearing trees areas of critical habitat or declared areas of outstanding biodiversity value (new BC Act 2016) wetlands or littoral rainforest areas under the new draft Coastal Management SEPP (replaces SEPP 14, SEPP 26 and SEPP 71) sandstone platforms in the Sydney Basin and other important geological features Experts are: Specialist Council staff such as a biodiversity officer, external consultant or specialist staff from State Government bodies
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SEPP Infrastructure 2007: Is an environmental assessment required for roadside works?
Not undertaking or inadequately undertaking an environmental impact assessment of proposed roadside works is a serious risk to Council ISEPP outlines the approval process and assessment requirements for infrastructure proposals identifies works of minimal environmental impact as “exempt or complying development” The context of the assessment will determine the types of issues that require assessment. SEPP (Infrastructure) 2007 will identify whether works are exempt development (i.e. not requiring environmental assessment) or require development consent under Part 4 of the EP&A Act or assessment by the organisation undertaking the works under Part 5 of the EP&A Act. Exempt development may only be carried out if the work is of “minimal environmental impact”. Generally any work that impacts vegetation is not likely to be of minimal environmental impact and some form of environmental impact assessment will be required
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Impact Assessment and Approvals: REF
EP&A Act - Council obligations to consider impacts Consent/approval authority (Council) must adequately address a range of environmental, social and economic matters associated with roadside construction and maintenance works Includes impacts on threatened species, populations, or ecological communities listed under the TSC Act and FM Act Preparation of an REF or EIS is the key mechanism through which Council can fulfil its responsibilities – REFs can cover ongoing routine maintenance works or routine maintenance activities can be determined via assessment checklists An REF will identify and assess the likely impacts of an activity and specify strategies to avoid or mitigate impacts Note that other environmental matters would include: Matters of National Environmental Significance (NES) under the Commonwealth Environment Protection and Biodiversity Conservation Act 1999 Heritage Act 1997 for significant items of social, cultural, archaeological etc. significance Water Management Act 2000 for impacts such as excavation or deposition on ‘water front land’ TSC Act: Threatened Species Conservation Act 1995 FM Act: Fisheries Management Act 1994
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CREMF Tool: Environmental Impact Assessment
CREMF Tools Ecological Impact Assessment introductory training slides Template REF ISEPP decision flowchart
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On-ground Works: Improving Practice
Leverage & adapt existing protocols, procedures and guidelines Staff support Maintenance/restoration of high biodiversity areas Field data maps Example safeguards Example pre-construction checklist Roadside marker scheme for employees, contractors and the community Identify significant sites Link to appropriate management practices via RVMP Planning is required before any road construction or maintenance works are undertaken to ensure that the conservation of roadside vegetation is achieved. Road construction and maintenance works can have substantial impacts on roadside vegetation, depending on the scale of works. Inappropriate road maintenance practices can also have an adverse effect on the conservation and condition of roadside vegetation, through the inadvertent spread of weed propagules or plant pathogens (e.g. Phytophthora) Roadside markers identify sensitive areas of roadside environments and are used to provide clear instructions for staff undertaking roadside management activities to prevent inadvertent damage to threatened vegetation and high conservation habitat There are existing RMS guidelines for a range of construction and maintenance activities
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CREMF Tools: On-ground works
See CREMF report Resource Compendium of existing reference materials Appendix E See CREMF Tools Introductory Training Slides on Site Management Environmental Data Introductory Training Slides on Site Management Checklists and Safeguards Stockpile Management: Singleton Council (Section 8)
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CREMF Monitoring Demonstrate success Learn from experience
Suggested Parameters: Program administration Measure of weed control Measure of rehabilitation works Proportion of roadside activities with REFs Proportion of roadside areas with vegetation mapping Areas of significant roadside vegetation which are marked Number of community complaints regarding roadside environment Environmental conditions Changes to weediness over time Condition rating (Rapid Assessment Tool) Roadside monitoring Demonstrate success Learn from experience Provides accountability Tracking environmental outcomes over time Monitoring and review of environmental outcomes is an important part of the management cycle because it allows councils to learn from their experience, to demonstrate successful outcomes and monitoring and review are inherent in IP&R.
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Monitoring Parameters
Program administration Measure of weed control Measure of rehabilitation works Proportion of roadside activities with REFs Proportion of roadside areas with vegetation mapping Areas of significant roadside vegetation which are marked Number of community complaints regarding roadside environment Progress towards Key Directions in Community Strategic Plan Roadside monitoring Reporting back on works to account for expenditure compared to those to undertake field monitoring is very different Requirement to report success against Key Directions back to community and for council staff satisfaction & recognition
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Monitoring & Review Environmental conditions
Changes to weediness over time Changes to site condition rating (Rapid Assessment Tool) Landscape goals accomplished Connectivity Protection of habitat Protected threatened species/ community Rehabilitation success/maturation Roadside monitoring Reminder that all this work is to achieve on ground outcomes. This is the asset we are managing.
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This presentation has summarised the Council Roadside Environmental Management Framework. The Council Roadside Reserve (CRR) Project delivered by LGNSW and funded through the NSW Environmental Trust is available to Councils to develop and trial improvements to roadside environmental management.
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