Issue 7: Infrastructure development

Several aspects of rural land, agriculture and rural lifestyles have significant private and public infrastructure needs. Servicing and providing access to and around rural areas can be extremely expensive and infrastructure provision therefore needs to be carefully considered.

Nonetheless, carefully planned and considered infrastructure can create significant growth in the rural economy, provide greater access to important services and accelerate the advancement of emerging industries. Examples as discussed further below will include

o supply chain infrastructure, particularly road networks including bridges and weight limits o drainage and flood mitigation infrastructure o other infrastructure including workers accommodation, emergency management infrastructure, environmental and recreational infrastructure, as well as social infrastructure that benefits rural communities

This section pays particular attention to public infrastructure and opportunities for Council, in conjunction with other government and industry, to plan for future infrastructure improvements. For reference, many of the existing key rural infrastructure and facilities are presented at Figure 24.

7.1 Supply chain infrastructure

Consultation undertaken for this Background Paper suggests that supply chains are generally well catered for within many of the more established, mature and higher value industries, such sugarcane and beef cattle. That said, the Clarence Valley Economic Recovery Strategy (2021) does identify the opportunity for reviews in these areas, and over time improvements to existing supply chains will be required. This may include upgrades to sales yards or replacement of bridges along key access routes and the like. Ongoing engagement with these mature industries will be important to identify and plan for supply chain improvements.

Many of these are also highlighted in Council’s LSPS (2020). For example, Planning Priority 7 states “Co-ordinate local and state funded infrastructure delivery with land use planning”, which provides direction for the efficient use of infrastructure provision, including key roads and transport connections that support rural lands. The project priority of “Support and grow the agricultural sector” and particularly the references to “facilitate improvements in the supply chain to support economic growth, food security, primary producers and the agri-food sector” is also captured here.

Figure 24: Rural infrastructure and facilities Figure 24: Existing rural facilities and infrastructure

The From Roots to Routes Strategy (2019) by RDA Northern Rivers outlines freight and supply chain planning for the Northern Rivers. It highlights that a number of opportunities that exists within the Clarence Valley. This includes the creation of shuttle rail services from Intermodal facilities such as Grafton to run directly to the Northern Rivers to the Port of Brisbane to reduce freight costs, greater connection with larger airports from Grafton and additional B-double routes through the Summerland Way.

Significant improvement in supply connectivity to the major population base of South-East Queensland has recently been achieved through the upgraded Pacific Highway. This also presents potential new and emerging opportunities, such as international freight movement from the Gold Coast and Toowoomba Wellcamp airports. More locally, the existing Grafton Airport and connections to Coffs Harbour Airport also means that air services are relatively well catered for.

At the local level however, there are a number of potential improvements that are identified through initial research and consultation. Some of these are identified by the Clarence Valley Food Inc’s The Clarence Valley food & agribusiness call to action and Grow the Clarence bushfire industry package submission documents dated May and July 2020 such as:

o Centralised food cold storage facility and distribution centre o Regional wholesale marketplace and food hub o Upgrade of Grafton regional saleyards (currently underway) o Mobile abattoir and processing facility

73 See Regional Development Australia Northern Rivers NSW - Blueberry Industry Business Barriers

Review: NSW Northern Rivers (2017) The Clarence Valley Economic Recovery Strategy (2021) also identifies the development of a “program business case for completing Armidale Road bridge replacements & associated works to increase regional resilience, connectivity & productivity”.

Bridges form a major part of the road network. Some of the older bridges, mainly of timber construction, were not designed to cater for high volumes, heavy trucks and vehicle speeds of today. Outdated infrastructure like this is particularly problematic in areas such as forestry hardwood plantation hubs and for ongoing growth of the blueberry industry73 , where intensive use of roads needs to be matched to infrastructure investment.

Major road corridors such as the Gwydir Highway, Pacific Highway, Armidale Road and Summerland Way all provide access to various markets and supply chains. The North Coast railway line is also very important for the movement of produce and bulk items from the LGA to export locations.

The common touch point for these routes is Grafton. This suggests that the area would be potentially well located as a freight hub, with the Clarence Valley Economic Recovery Strategy (2021) highlighting the need to undertake a detailed North Coast supply chain analysis to identify potential high-yield industries that could be relocated in the Clarence Valley to improve productivity and local opportunities. This would also benefit agricultural and forestry markets, where further investment may be required to facilitate growth in those industries.

This is further emphasised in the Australian Farm Institute report Stronger Ag, Stronger Regions (2021) that outlines “Connectivity,

Infrastructure and Workforce” as the three themes that unpins successful agriculture.

7.2 Drainage and flood mitigation

The Clarence Valley LGA is frequently subject to flooding with over 120 floods recorded since records began in 1839. With the Clarence River being Australia’s second largest river and with the majority of townships in the LGA located near or on a its tributaries, the impacts of flooding are felt throughout the LGA.

However, the wide-ranging flooding impact of the Clarence Valley is also a great strength with some of most productive agricultural land located within the floodplain. As such, a number of rural industries, agricultural infrastructure and properties are situated within the flood plain, as previously shown in Figure 12 on page 38.

Infrastructure planning in flood affected areas is important in two predominant ways:

o providing infrastructure to mitigate flooding impacts as far as possible to protect life and property, such as levees o providing Infrastructure associated with more regular, but lower scale rainfall events, where drainage is more critical.

A number of industries in the Clarence Valley are only viable from their ability to access land within the floodplain. Without adequate infrastructure, such as drainage and bridges, that can address flooding impacts, the productivity of industries decline. Alternatively, it is also acknowledged that ‘hard’ measures are not always the only options, with more natural system measures also being possible (see Clarence River Floodplain Prioritisation Study comments further below). Council recognises this issue and has developed and recently adopted a Clarence River Structural Mitigation Works Review (June 2021) that provides a prioritised ranking of 33 flood mitigation schemes. Together these schemes see Council being responsible for operating and maintaining assets comprising:

o 110km of levees o In excess of 500 flood gates o Approximately 250 drainage channels o 50 farm drain bridges o 18km of bank protection

The outcomes of the Structural Mitigation Works Review preferences urban areas due to the proximity of property and residents (lives), but also recognises the importance of rural land benefits.

A Drain and Floodgate Maintenance Procedure is also adopted by Council, with LEP provisions providing for on farm drain maintenance by farmers, particularly in relation to acid sulfate soils (Clause 7.1). These arrangements become complicated within the drainage / flood scheme systems, with ownership and responsibilities for infrastructure provision and maintenance changing through downstream process –from on farm activities to mitigation schemes on private land, to flood gates and sluices prior to outlets to river and creek systems. The complexity of approvals is further discussed under Issue 8.

Council’s maintenance of drainage and floodplain assets is limited by available funding. Staff advise that annual grant maintenance allocations from the State Government have remained fixed for many years, meaning that the ability to facilitate timely maintenance has become gradually more and more difficult. This will become further exacerbated by sea levels rise, associated salinity and increasing flood

frequency as a consequence of climate change (see Issue 1.4 for further comments).

In addition, the Clarence River Floodplain Prioritisation Study conducted by the UNSW Water Research Laboratory outlines where the greatest improvements in water quality can be achieved through strategic management actions. The study breaks the Clarence River floodplain into sub catchments and prioritises different areas based on acid sulfate soils and blackwater. It identifies the three highest priority catchments and makes preliminary recommendations that substantially change the drainage regime, highlighting the potential extent of change that may be required across the flood plain over the longer-term.

If the dominant use of floodplain areas changes over time, for example the current sugarcane to macadamia trend, there may be further opportunities to review and examine how drainage and floodplain management is undertaken.

7.2 Rural workers’ accommodation

Rural lands in the Clarence Valley cover an extensive area meaning that access to rental or other accommodation can be difficult. Combined with more recent issues associated with housing affordability and rental availability, this can result in significant issues for seasonal worker accommodation.

Whilst “rural workers’ dwellings” are a permissible use in both the RU1 and RU2 zones, under CVLEP 2011 Clause 7.10 Erection of rural workers’ dwellings, such development can only accommodate rural workers on the site of the agricultural or rural activity and where it is ancillary to a dwelling house or dual occupancy on the same lot. This definition is deliberatively restrictive in terms of the pre-requisites for permissibility (particularly that the land contains as existing dwelling and must be on the same land as the agricultural / rural activity).

Rural worker’s accommodation is particularly sought after in seasonal industries such as blueberries. In the context of the Clarence Valley, such accommodation may need further investigation, particularly if there is an increase in intensive plant agriculture envisaged for the future or if housing costs and availability continue to cause impacts on farm worker availability.

An alternative “temporary workers accommodation” clause may also be appropriate, which could enable nearby off-site rural workers’ accommodation where suitable. Clause 6.6 of Kyogle LEP 2012 is an example of this and such a clause may be investigated for the Clarence Valley, acknowledging that this type of use would need to be met by strict assessment criteria and enforcement to avoid abuse. It may also be further considered as part of Council’s proposed Housing Strategy.

7.3 Other rural infrastructure and support

While the majority of public infrastructure provision relates to supply chains and floodplain management needs as outlined above, there remains a number of other rural infrastructure needs that may need to be further considered over the life of this plan. These include:

o Emergency management infrastructure , which is being considered within broader review relating to emergency response needs, including through agencies such as RFS, SES and NPWS. o Environmental and recreational infrastructure, such as those needed to assist fauna movement along key corridors or in association with nature-based recreational and tourism activities.

o Social infrastructure, such as meeting places in rural villages

Investment in key public and private infrastructure to support the directions of the Strategy will be generally supported on an as needs basis and particularly where identified through more detailed investigations.

As outlined throughout this Report, there is also a range of support mechanisms through various education and programming initiatives that could be considered and co-ordinated by Council (in conjunction with partners). In addition, consultation highlighted opportunities for greater industry and cross-industry collaboration that would benefit productivity and environmental outcomes.

For example, one co-operative consulted for the project identified that individual farmer activities tend to be ‘dis-jointed’ , with potential for greater co-ordination meaning that producers can ‘scale-up’ actions (such as environmental or pasture improvements measures) through joint initiatives / arrangements.

This was further identified by organisations such as Young Framers and LLS, that highlight the importance and positive outcomes of coordinating ‘small farm networks’ – the potential for which is recognised in LLS’s draft Local Strategic Plan. However, these groups also recognise that ‘extension officers’ within government or industry groups are likely to be better placed to advise on technical issues within larger established industries – with the smaller and newer farmers / producers being more difficult to capture and a potential target market for local government-based activities. Having effective infrastructure in place to support these is therefore an important factor to consider.

RELATED RURAL LANDS STRATEGY RECOMMENDATIONS

Note: the recommendation numbers relate to those presented in the Rural Land Strategy document for ease of reference.

Engage with government and industry to leverage support

Recommendation 16: Lobby government to seek options to reduce delays and costs associated with drainage, floodplain maintenance and approval requirements

Lack of adequate funding that leads to sustainable programs for rural floodplain infrastructure improvements, combined with lengthy approval processes for floodplain maintenance, has resulted in ongoing industry challenges. While it is recognised that some of this falls outside of Council’s scope (such as increases to State payments and State approval systems), Council will continue to facilitate improvements related to the floodplain wherever possible.

Develop supporting infrastructure that enables opportunities

Recommendation 22: Consider opportunities for, and where viable develop an ‘Agricultural Hub’ to benefit a wide spectrum of rural activities

Recommendation 23: Establish a basis for industry specific and shared infrastructure opportunities

The development of carefully planned, shared infrastructure arrangements can act as an incubator to agricultural activities, provide links to food and agri-tourism, as well as providing spaces for training, education, events and marketplaces that celebrate localised food

production. Considering options and establishing these over the timeframe of the Strategy is recommended.

In conjunction with outcomes of future ‘Emerging Industry Strategies’ as part of Recommendation 14, there may be opportunities to collaboratively coordinate shared infrastructure that can assist industry specific productivity.

Recommendation 24: Undertake a supply chain analysis to identify and establish direction for improving transportation and logistics in the short and long-term

As rural industries develop and expand, opportunities for supply chain modification, improvement and expansion are likely to arise. This is particularly relevant to the road network, where weight limits and bridges can impact of the effective distribution of produce – where it be cattle, forestry products or others. In the longer-term, a transportation node around Grafton may provide further benefits for inter-modal connectivity.