Parliamentary Committees

Natural Resources Committee: Use of Off-Road Vehicles

Mr TEAGUE (Heysen) (11:02): I move:

That the fifth report of the committee, entitled Inquiry into Use of Off-Road Vehicles in South Australia, be noted.

The Natural Resources Committee initiated its inquiry into off-road vehicles in South Australia on 20 June last year. The inquiry sought to inquire into and report upon a number of matters: firstly, the efficacy of the current legislative and regulatory framework; secondly, the impact on the environment, particularly on coastal areas and protected areas, of the use of off-road vehicles; and, thirdly, impacts on the state in areas, including tourism, recreation, land rehabilitation and biodiversity, and the impacts upon it and loss, so the environmental impacts of the use of off-road vehicles in those parts of the environment. The committee further considered other matters in that regard.

Submissions ranged widely across those matters and, in the course of the inquiry, the committee received 35 submissions and took evidence from 11 witnesses. The committee thanks all the stakeholders who responded and contributed to what was a robust and wideranging inquiry, as those terms would indicate. Sound management of off-road vehicle use in South Australia's environment inevitably needs to balance a range of interests and take into account relevant local, state and national frameworks.

In that regard, I note in particular the interaction between off-road vehicles in environments, particularly coastal environments and beaches, and the Road Rules. Clearly, there is an interaction there between vehicles that are able to be used on regular roads as well as in that off-road environment and the Road Rules, and the Road Rules is one key area in which there is an interaction with what is part of the national framework.

The inquiry, being first undertaken at a state level in the way it has, has illuminated a number of these complex areas and the issues that attend them. I note in particular some issues that were raised as part of the inquiry so as to illustrate the range of those matters that were contemplated. They were:

firstly, the growing number of people who are participating in off-road vehicle use and the spin-offs for tourism and economic activity that this brings. I note in this regard those aspects of specialised manufacturing that are associated with the use of these vehicles, and that appears to have been a national phenomenon over recent years;

secondly, the impacts of off-road vehicles on safety, amenity, protected areas, cultural heritage, coastlines and flora and fauna; information about the impacts, and often detrimental impacts of off-road vehicles, particularly on birds and bird habitats, damage to fragile areas and what the committee heard to be, at times, irresponsible user behaviours, matters which were of particular concern to the committee;

thirdly, the frameworks that are used to manage off-road vehicle use in South Australia differ according to different land tenure and also across different local government regions. The committee was fortunate to hear from representatives of local government relevantly in that regard. The effectiveness of compliance and enforcement activities were also matters that were raised. The committee heard that in the circumstances and the environment in which these vehicles are being used, compliance and enforcement measures are very much dependent upon available resources; and

fourthly, the committee considered innovative options that may be considered by government in managing the impacts of off-road vehicles. The committee considered options in that regard, including dedicated parks, a permit system, and the consideration of a permit system that may be either introduced or enhanced and the introduction of a statewide code of practice. In that regard, the committee heard evidence from associations of off-road vehicle users, evidence that was of particular value on that topic, and there was a question of limitations on future access that may be appropriate, particularly when it comes to the interaction with fragile areas of the natural environment.

South Australia has a spectacular range of experiences that can be undertaken in our unique environment. The popularity and accessibility of off-road vehicles provide enormous potential for growth in tourism and recreation. We have seen that illustrated in the course of the COVID global pandemic and, I see, in some of the government's recent advertising.

Clearly, we have a spectacular natural environment in this state, and off-road vehicles provide a means for people to get there and to access it. But, because of the high environmental values of South Australia's coastal and arid landscapes, growth in tourism and recreation must, the committee found, be achieved in the context of the state's broader goals for biodiversity and for habitat protection.

The committee's report set out a number of recommendations, and those are prominent in the report. I draw particular attention, as I have adverted to in my remarks about the interaction of the Australian Road Rules with the use of off-road vehicles, to the committee's recommendation in regard to the education and monitoring of vehicles driving off-road and their capacity to travel safely according to prevailing conditions, notwithstanding the notional applicable speed limit that might apply, given the way in which those, particularly beaches, are categorised as part of the area that is subject to the Australian Road Rules.

Often the prevailing conditions, which are a proviso for the application of the Australian Road Rules generally, are not something people turn their mind to terribly much because the speed limit that is applicable on our roads tends to reflect a safe level of speed in the majority of prevailing conditions; this is not so on a beach. The application of the Road Rules might lead to a notional speed limit on the beach, but that is by no means always a safe speed at which to travel in light of the prevailing conditions that might apply on a beach from time to time.

The committee's recommendation, and consideration of that matter, might be all the more broad, insofar as it shines a light on the fact that in many ways those off-road areas are not so much extensions of the road but are in a very real sense really parts of the natural environment that ought to be protected and considered. I commend to the house the body of recommendations that are the subject of the report and the balance of the report, reflecting, as it does, the very substantial and wideranging interaction with those stakeholders in a variety of ways about the environment in which off-road vehicles are used.

I take the opportunity to thank everyone who gave their time to assist the committee with the inquiry. I commend the members of the committee—the member for Finniss, the member for Port Adelaide, the member for MacKillop—as well as those members of the committee who are members of another place in the Hon. John Darley MLC, the Hon. Terry Stephens MLC and the Hon. Russell Wortley MLC. I thank all of them for their contributions to this report and the work that was undertaken.

I also thank the committee's staff, relevantly Mr Phil Frensham, who has since moved on to bigger and better things; Mr Shannon Riggs, who has taken on those duties; and, in particular for her consistently high-quality work in support of the committee's functions, the committee's research officer, Dr Monika Stasiak. I take this opportunity to thank her not only for her work on this report but for her tremendously valued excellent work in support of the committee in its work throughout the course of this parliament until just now. Dr Stasiak has moved on to bigger and better things, and I am sure I speak on behalf of the committee in thanking her and wishing her very well in terms of her future contribution. With that, I commend the motion.

Mr McBRIDE (MacKillop) (11:16): I have much pleasure in rising to speak in relation to the fifth report of the Natural Resources Committee, which reflects the outcomes of the committee's inquiry into the use of off-road vehicles in South Australia. I thank my fellow Natural Resources Committee members for their efforts and application to this inquiry and, of course, the staff who have ably supported the committee during this period. They are Dr Monika Stasiak, Mr Philip Frensham and Mr Shannon Riggs. I will pay a special thank you to both Dr Stasiak and Mr Frensham for all their efforts as they are no longer working with us but we have really appreciated all their efforts in the committee thus far.

This matter is particularly relevant for the Limestone Coast area and I was pleased to participate in this inquiry. The Limestone Coast and the Coorong have a significant coastline that extends for 417 kilometres from the Murray Mouth to the South Australian border. Our coastlines are blessed with magnificent scenery and significant environmental values, which provide substantial opportunities for our tourism sector, but this must be balanced to ensure we sustain and protect our natural assets so that they can be enjoyed by future generations.

Our small and large coastal towns, and indeed inland towns, all benefit from the visitation they receive from many four-wheel driving enthusiasts. Four-wheel driving in our state is a pursuit that many people enjoy. We also know that, in my part of the state, many people from our neighbouring state of Victoria have traditionally enjoyed four-wheel driving on our beaches and in our dune systems prior to the border restrictions.

We know people's views on four-wheel driving can be divided. That is one of the reasons I felt it was particularly important to undertake this inquiry and get a balanced assessment in its pursuit. The terms of reference for the inquiry on which the committee sought to report were:

(a) The efficacy of the current legislative and regulatory framework;

(b) Impact on the environment, particularly coastal areas and protected areas;

(c) Impacts on the State in areas such as tourism, recreation, land rehabilitation and loss of biodiversity;

(d) Any other related matter.

Our committee was pleased to receive 35 submissions and hear evidence from 11 witnesses during this inquiry.

There was a series of points, which I thought worth highlighting, as issues emerged as part of our process. There were meaningful spin-offs for tourism and economic activity from the growing number of people who are participating in off-road vehicle use. Impacts of off-road vehicle use that were concerning to the committee include those on safety, amenity, protected areas, cultural heritage, coastlines and fauna. Other concerns about irresponsible user behaviour included impacts on fragile habitat and birdlife.

Unsurprisingly, we learned in this area that compliance can be hampered by a lack of resources. This is one point I would just like to touch on. In seeking and seeing, we went to the member for Finniss's area near Goolwa and looked at some dunal issues in this vicinity. It was noted that four-wheel drives and vehicles are restricted by the means and mechanisms of putting in railings and posts. A lot of the time, these railings and posts can be removed or damaged, then vehicles will pursue those travel points and the damage that we are trying to remediate becomes worse or does not recover like it could.

The other point that was highlighted on this visit was signage. Again, I come back to those two points. To apply that type of signage and have those sorts of restrictions in place requires dollars, and money and resources are certainly in short supply for this sort of remediation. The committee also considered some innovative options for managing the impacts of off-road vehicles, including dedicated parks, a permit system and potentially some limitations on future access to fragile areas. Recommendations for our government are that it:

1. Encourages the development of appropriate infrastructure to support off-road vehicle use in South Australia, including public-private sector partnerships in dedicated four-wheel drive parks.

2. Develops a code of practice in partnership with local governments and relevant statutory bodies. This would include working with First Nations stakeholders, landscape boards and other stakeholders to apply statewide standards for off-road vehicle use in South Australia.

3. Implements education and monitoring of the requirements for the code of practice and relevant speed limits and safety requirements under prevailing conditions.

4. Reviews the application and interaction of the road rules framework to the use of off-road vehicles on beaches.

5. Further investigates the introduction of a permit system for off-road vehicle use in South Australia, such as exists in other states.

6. Undertakes an inventory in partnership with local governments to identify areas to which four-wheel drive access should be prohibited either seasonally or permanently, areas that could be opened for limited use and areas where environmental impacts are likely to be lowest.

7. Supports local governments and relevant authorities in accessing and applying funding for specific initiatives, such as increased signage and remediation projects.

Just covering off, it was an absolute privilege to be part of this with the NRC. I find the NRC to be one of those really enjoyable committees. We have been out on at least three or four tours around the state, with two to the arid lands. One was from Coober Pedy up to Innamincka and Birdsville, and the other one was out to the APY lands. Another tour we did was to Kangaroo Island, and then we had the smaller tour down to Goolwa to look at some of the coastal dunal issues for this report.

What is really obvious with all these tours that we have been on—whether it be to Kangaroo Island or the arid lands, looking at four-wheel driving and access to national parks and the like—is the need for some sort of investment and resources to utilise, enhance and, not only that, promote these areas for tourism and for the people to be able to enjoy them and maximise their time, be they South Australians, Australians or even international tourists.

When we consider what we have just been through as a world population with this pandemic, a lot of people talk about a reset button. One of the great things this reset button may achieve is to look at what we have locally in our own backyards, how to enjoy it with best practice, and without damaging the environment, and how to do it well. South Australians are staying home more and Australians are getting around Australia more than they ever have before.

For this four-wheel driving and off-road access inquiry, it is really important to look at areas such as the Coorong. I have a really strong constituent down there who runs a business in ecotourism, sport, recreation and fishing. He has had a real battle not only to look after that business but to grow it, enhance it and promote it to be what it could be. I do not just mean the Coorong; this extends right along South Australia's coastlines with all the opportunities that may be there for tourism to take place.

It is not only that: when tourism takes place in these areas there are a lot of flow-on effects. I think one of the things we just heard about today was witnesses from Green Adelaide speaking about Green Adelaide's interactions, with its tentacles into the other landscape boards and promoting the environment that it has to promote for our population to engage and belong to and take responsibility for.

I think one of the things I have probably got out of this four-wheel drive inquiry is that there are people out there who want to participate in not only enjoying these resources but in building and managing them so that they are not only better today but better for future generations. Among all the things that came out of this inquiry were the longevity and future aspirations and the role of governments, be they local or state or even perhaps federal, in managing these types of areas so that they can be enjoyed by all who wish to use them.

I will not go on any further because I know there might be other speakers on this. It is a very good report. I thank all my participating fellow colleagues on the committee for their input and their bipartisanship and the presiding officer, the member for Heysen, and everyone for all the efforts that have been made.

Dr CLOSE (Port Adelaide—Deputy Leader of the Opposition) (11:25): I rise to speak very briefly in support of this report. I am on the Natural Resources Committee, and I must say being on that committee is one of my greatest pleasures of this term in parliament. It is a committee where I think every member is truly dedicated to better management of our natural resources, and by that I mean that human beings must flourish within the context of the environment flourishing.

This report reflects exactly an attempt to find that pathway through. I will not use the word 'balance', because that gives an impression of always having one element sacrifice in order to accommodate the other. What we know we need to do in order to have a sustainable future is find a way where we can satisfy both the demands and needs of humans and the demands and needs of the planet on which we depend. That is a greater challenge than simply trading off elements, one against the other. Indeed, it is that trade-off mentality, I think, that has largely led us to the very difficult circumstances we find with the growing climate crisis and biodiversity loss crisis.

This report is specifically aimed at working out how one manages a recreational activity, the right that many people feel they have and, indeed, that we hope all people do have, to enjoy the natural environment, to enjoy the great outback, whether that be beaches or not, along with the desire for tourism to flourish, particularly in our regions. We want people to want to come out and spend time and money, ideally, in the regions and we also want to make sure that the very thing that people enjoy in going out into the regions is protected so that it is sustained in the long term.

That is particularly acute when it comes to the question of managing off-road driving. Driving in four-wheel drives can be damaging; there is no question about that. A large vehicle with big tyres can get bogged on occasion—

Members interjecting:

Dr CLOSE: It has been known. Shall we say, it has been known. We will not go into detail, because what happens on trips stays on trips, largely. But you can see that a four-wheel drive on a beach, on a sensitive dune system, can cause damage. How is it that we make sure that people are able to enjoy the environment, that they are able to go out and spend money and have tourism operations and that we do not do the kind of damage that no-one wants to see left behind? This report was done with the intention of highlighting those issues, and I think it has done that very successfully.

I would like to take the opportunity to thank Dr Monika Stasiak, who was our research officer who wrote this and several other reports that have come out in this term of parliament. She has now gone on probably to higher and better things, working in the environment department, but did an enormously useful body of work for us.

I have said in the committee and I will put on the record here that her capacity to take very disparate views presented through evidence, and probably disparate views and ideas expressed around the table by the members, and to form a coherent report that advances our collective understanding of the issues being addressed was, I think, second to none—and I have been on many committees in the eight or nine years that I have been in parliament. So I very much thank Monika for her work.

I thank my colleagues and of course the Presiding Member of the committee for the work on this report, and I look forward to being able to rise to speak on many other reports in the remaining 18 months.

Mr TEAGUE (Heysen) (11:29): I rise to thank the deputy leader and the member for MacKillop for their thoughtful contributions. I very much appreciate it. I certainly would echo their sentiments. I note that the member for Finniss was very interested to make a contribution to the debate, and there may be another opportunity for him.

I thank all members of the committee. Certainly, I echo once again those thanks in particular to Dr Stasiak and just observe, to take up the remarks of the deputy leader, that sometimes when working collectively as a committee we all get in and do the digging together. Sometimes that is metaphorical and at other times, particularly in the work of the Natural Resources Committee, that is literal.

When that happens, you know very quickly who is actually in there doing the work, and I am very proud to say that we have a committee that is populated by people who dig in, who get in and do the work. That ensures the kind of excellent outcome that we have seen here today. The report that is the subject of this inquiry is no exception, so thanks to all who are involved. Once again, I commend the motion.

Motion carried.