Parliamentary Committees

Natural Resources Committee: Use of Off-Road Vehicles

The Hon. N.J. CENTOFANTI (15:49): I move:

That the fifth report of the committee, on an inquiry into the use of off-road vehicles in South Australia, be noted.

The Natural Resources Committee self-initiated an inquiry into off-road vehicles in South Australia on 20 June 2019. The committee sought to inquire into and report on the efficacy of the current legislative and regulatory framework around off-road vehicles, the impact of off-road vehicles on the environment, particularly coastal areas and protected areas, and the impact of off-road vehicles on the state in areas such as tourism, recreation, land rehabilitation and loss of biodiversity, as well as any other related matter.

Much of this inquiry occurred prior to my time in this chamber; however, I have read the final report, which has been tabled, with much interest. Submissions to the inquiry ranged widely across the matters envisaged by the terms of reference, and the inquiry received 35 submissions and heard evidence from 11 witnesses. The committee would like to thank all stakeholders who responded to the terms of reference and contributed to a robust inquiry.

The committee found that the appeal of off-road vehicle use is growing and that off-road vehicles are an accessible means of transport for exploring South Australia's many spectacular outdoor experiences. The challenge is to balance responsible off-road vehicle use with sustainable management for the state's unique and valuable environments. The committee heard evidence that the four-wheel drive club community encourages responsible off-road vehicle use and is involved in numerous community outreach activities, usually at members' own expense and undertaken in a voluntary capacity.

There is no compulsion for off-road vehicle users to join a user club, which means that the total number of off-road vehicle users in South Australia is unknown. Establishing behavioural norms across the entire user community becomes more challenging within this context. Incentives to join a user club could facilitate more involvements with clubs. The main incentives would be offering members-only experiences such as access to dedicated off-road vehicle parks or facilities.

Submissions to the inquiry argued that irresponsible use of off-road vehicles can have many detrimental outcomes, including impacts on cultural heritage sites, impacts on birds and other fauna, impacts on coastlines, impacts on protected areas and impacts on the safety of humans and the amenity of outdoor spaces. A plethora of Australian and international research undertaken over many decades shows that human impacts on coastal areas are particularly damaging for birds and their habitats.

Balancing opportunities to experience South Australia's spectacular environment with the need to ensure that off-road vehicles are used responsibly is a challenge for the three levels of government and the stakeholder groups involved. The committee heard that the framework currently used to manage off-road vehicles is somewhat complex due to the differing requirements that apply across the state and across different types of land tenures. Compliance and enforcement activities are undertaken less easily in remote areas and in areas where there are fewer dedicated resources.

One issue of ongoing concern is the speed limit that applies on beaches. Submissions received discuss concerns for human safety and beach habitats. The committee heard from the Department of Planning and Infrastructure that beaches fall within the ambit of the Australian Road Rules. Due to the variability of conditions applying across different areas, drivers should be encouraged to drive in a way that is appropriate for the prevailing conditions. The committee recommends that more signage and infrastructure would assist users to understand the rules applying in some areas.

The committee undertook a fact-finding visit to Goolwa beach and noted numerous instances of apparent noncompliance with the 40 km/h speed limit applying on that beach. The committee noted that more signage could have the valuable impact of directly reminding users about the applicable speed limits and potentially curb some users' behaviours at that particular site.

The committee further heard that permit systems have been used successfully in other states and are now being introduced in some South Australian protected areas through the online parks booking system. A small number of local authorities are intending to introduce a permit system for specific areas; for example, as part of the Goolwa beach redevelopment project.

A permit system would be valuable for multiple reasons. It identifies the person making the booking and therefore enables compliance activity if required and enables the relevant authorities to gather data about or limit the number of users in an area at a particular time. This could be particularly valuable on high demand days such as public holidays. The committee therefore recommends that a permit system be further investigated for statewide use.

Evidence presented to the inquiry demonstrated that the resources needed to completely manage the impacts of irresponsible vehicle use are difficult to quantify and difficult to budget for. In some council areas fencing and other solid structures have been either moved or destroyed by off-road vehicle users.

Responding to instances of vandalism is costly and sometimes only has a temporary impact. Users may repeatedly destroy or damage the same area after remediation or prevention works have been undertaken. Managing the impacts of irresponsible vehicle use is therefore an ongoing task for which project-based grant funding may be suitable. The committee recommends that local authorities should be encouraged to seek and apply for funding as this becomes available.

The committee heard that redirecting off-road vehicle use away from sensitive environments is a logical means of managing their impacts. Several submissions discuss dedicated off-road vehicle parks being made available to users as a means of providing an off-road vehicle experience that causes minimal environmental damage. The committee heard that councils are cautious about providing such facilities due to the high-risk nature of off-road vehicle use and the consequent liabilities that would arise.

There are several privately-owned off-road vehicle parks in South Australia. Government support for further ventures of this nature would provide opportunities to divert some sectors of the off-road vehicle user community away from damaging environmentally sensitive areas. The committee acknowledges that many off-road vehicle owners use their vehicles responsibly and are aware that irresponsible use can cause damage to humans and the environment.

Many off-road vehicle users take their vehicles to sensitive environments to experience accompanying aspects of the outdoors, such as fishing spots, camping or hiking. Among those users environmental damage is unlikely to occur deliberately and these users are likely to engage with guidance on minimising the impacts of off-road vehicle use in protected areas.

The committee therefore considers that a statewide code of practice, which attempts to minimise differences between areas and which provides clear and accessible messages to all users of off-road vehicles, would be a valuable initiative to accompany a permit system. The committee recommends that this should be developed collaboratively, using the expertise of off-road vehicle user groups, First Nation stakeholders and the three levels of government involved in the management of off-road vehicle impacts.

Additionally, the committee heard that some environments are so sensitive that a minimal amount of human impact would be ideal to manage these. Several submissions recommend that a statewide inventory of sensitive areas should be taken to identify management regimes that are appropriate for specific areas. The committee found that areas of local, state, national and international environmental significance and areas of cultural significance should be prioritised for protective management. The committee therefore recommends that an inventory process to identify these areas would be a valuable undertaking, with inputs from relevant experts.

In summary, South Australia has a spectacular range of experiences that can be undertaken in its unique environment. The popularity and accessibility of off-road vehicles provides enormous potential for growth in tourism and recreation. Because of the high environmental values of South Australia's coastal and arid landscapes, growth in tourism and recreation must be achieved in the context of the state's goal for biodiversity and habitat protection.

I thank all those who gave their time to assist the committee with this inquiry. I commend the presiding member of the committee, the member for Heysen, for his leadership. I also acknowledge other members of the committee, including the member for Finniss, the member for Port Adelaide, the member for MacKillop, the Hon. John Darley, the Hon. Russell Wortley and yourself, Mr President, for contributions to this report. I also thank the committee's staff, Mr Phil Frensham, Mr Shannon Riggs and Dr Monika Stasiak, for their assistance throughout. On behalf of committee members, I particularly acknowledge the work and contribution of Dr Stasiak to the Natural Resources Committee and wish her all the best in her new employment.

Debate adjourned on motion of Hon. T.T. Ngo.