Академический Документы
Профессиональный Документы
Культура Документы
The Hon Paul McLeay MP Minister for the Illawarra Minister for Ports & Waterways Minister for Mineral & Forest Resources
Executive summary
The Murray River and its associated waterways provide important recreational opportunities for boaters from NSW and Victoria. The river waters fall under the jurisdiction of NSW and boating is managed by NSW Maritime. As the river also forms the border between NSW and Victoria, this waterway is used by the boating communities of both states and therefore safety requires a cooperative approach. The river in many places is narrow and winding and with large numbers of recreational users, presents signicant dangers. Users include fast moving ski and other towing boats, paddle wheelers, houseboats, canoeists, shers and swimmers. These are often competing for limited space around the major population and access centres. Between January 1992 and February 2010 there were 372 incidents on the river reported to NSW Maritime, resulting in 27 fatalities and more than 237 injuries. This review was triggered by a spate of serious incidents between 1 December 2009 and 13 February 2010 in which 4 people died. Deaths and injuries come at a signicant cost to families, the community and government and reducing these impacts requires decisive action. This review brings together incident data from NSW Maritime records, results from Focus Group Meetings at Albury/Mulwala, Moama/Echuca and Mildura, input from Boating Safety Ofcers (BSOs) with extensive experience on the river, and boating injury analysis conducted by Marine Safety Victoria. The assistance of Marine Safety Victoria in this review is gratefully acknowledged. The key management options identied relate to speed limits and zoning, towing, compliance and enforcement, licensing and education, and vessel res. The Focus Groups strongly supported more BSOs and a greater on-water presence as the single most effective measure to improve boating safety. There was general support for a speed limit of 40 knots to apply throughout the river, with exemptions for approved races and race training. Speed zoning, tow-rope length restrictions, protective gear, mandatory lifejackets for children, better signage, increased random breath testing and anti-hoon powers were suggested as additional boating safety measures for consideration by NSW Maritime. However, action in NSW alone is not the whole answer. With the high use of the river by Victorians, there is also the need to improve the understanding of NSW boating laws and navigation rules of skippers on both sides of the border. Harmonising boat driving licence standards between Victoria and NSW should be considered. Boaters intending to use the Murray should also be provided with education material about their obligations when operating in a NSW waterway. A joint approach to targeted and comprehensive boating education program for both NSW and Victorian boaters is essential.
Submissions Invited
Submissions, especially specic recommendations to improve boating safety, are sought from all stakeholders involved in boating on the Murray River. NSW Maritime will review all submissions and prepare a second paper outlining specic recommendations for further consideration by the boating community.
Background
The NSW Ports and Waterways Minister the Hon. Paul Mcleay MP tasked NSW Maritime to conduct a review of boating safety after an unusually high number of serious boating incidents in the three months from December 2009 to February 2010. On Christmas eve a swimmer died from injuries after being run over by a ski boat at Caseys Bend; on Christmas day a man drowned after a small punt capsized 200 metres from the shore of Lake Hume; on 24 January 2010 a water skier died after hitting a log at Moama; and on 13 February 2010 a water skier fell and died while competing in the Southern 80 Ski Races. Other serious incidents over this period included a man receiving severe lacerations and a broken leg after being hit by a boat propeller, a personal watercraft (PWC or jetski) crash, and a skiing incident where a skier was knocked unconscious. The rate of serious boating incidents on the Murray River is increasing: Between 1992 and 2008 there were: 27 fatal incidents (an average of 1.7 fatalities each year) Between July 2008 and June 2009 there were: 3 fatal incidents Between July 2009 and April 2010 there were: 4 fatal incidents Its not just the personal, emotional and social costs associated with serious boating incidents that have to be considered. The nancial consequences of boating fatalities are also signicant. The National Marine Safety Committee1 has estimated the cash cost to the community of each boating fatality to be $1.5 million, representing a total cost of more than $40 million for boating fatalities on the Murray since 1992. Injured recreational boaters average more than 38 hours in hospital2. Geographically, boating incidents on the Murray River are relatively focussed around Albury, Lake Mulwala, Moama, and Mildura, with a particular concentration around Moama. This is illustrated in gure 1. Figure 1 Boating Fatalities and Serious Injuries on the Murray River 1992 to 2010
1. National Marine Safety Committee (2003), National standard for the Australian builders plate for recreational boats. Final regulatory impact statement, NMSC, Sydney. 2. Follow-up study of hospital treated recreational boating injury the long term effects of industry. Marine Safety Victoria May 2008.
Review process
This review commenced in April with targeted stakeholder meetings held at Albury/Mulwala, Moama/Echuca and Buronga/Mildura. The meetings provided focused views to assist in the preparation of this Discussion Paper for public comment. A brochure was prepared and distributed seeking submissions to this review. Because of the extensive interest, submissions to the Discussion Paper will now close on Tuesday 13 July 2010. Submissions will be used to develop a set of specic recommendations for further discussions with the boating community, including the Recreational Vessel Advisory Group (RVAG) and the Maritime Ministerial Advisory Council (MMAC). A nal report will then be presented to Government for consideration. Any changes will be progressively implemented in consultation with boating groups.
Jurisdiction
All the waters of the Murray River3 fall under the jurisdiction of NSW. NSW Maritime is responsible for boating safety on the river including the registration of NSW boats and the issue of NSW boat driving licences. Victorian boat driving licences are recognised in NSW under Clause 76 of the Marine Safety (General) Regulation 2009. Under Section 50 of the Marine Safety Act 1998 boats registered in Victoria or another state are not required to be registered in NSW when visiting for a period of less than 3 months.
Origin of vessels
The majority of vessels using the Murray River and associated waterways come from Victoria. Over the past two years almost 90 per cent of the vessels checked by NSW Maritime on the Murray River have come from that state (see Table 1). Table 1 Vessel Check Statistics 2009-2010
Vessel Check Statistics October 2009 April 2010
Area Lake Mulwala Including Ovens River to MV Highway Bridge Murray River Tom Groggin to Lake Hume (to Bethanga Bridge) Murray River Lake Hume to Lake Mulwala Murray River Yarrawonga Weir to Tocumwal Murray River Tocumwal to Barmah Murray River Barmah to Moama Murray River Moama to Torrumbarry Weir Murray River Torrumbarry Weir to Swan Hill Murray River Swan Hill to Robinvale Murray River Robinvale to Mildura Murray River Mildura to SA Border Total
Total No. Checked 328 15 86 125 162 282 515 23 46 340 386 2308
NSW % 12.8 93.3 1.2 4.0 7.4 3.9 6.0 30.4 8.7 9.4 13.0 9.06
VIC % 87.2 6.7 98.8 96.0 91.4 95.7 92.4 69.6 91.3 87.1 83.2 89.30
Other % 0.0 0.0 0.0 0.0 1.2 0.4 1.6 0.0 0.0 3.5 3.9 1.65
Incidents
More than three quarters of all the above incidents involved the main vessel owners (MVOs) coming from Victoria. The relative frequencies of incidents resulting in fatalities, serious and minor injuries reported to NSW Maritime (by postcode of the MVOs) are shown in Figure 2. The number of incidents reported to NSW Maritime is considered to be an underestimate with many of those injured returning to Victoria for treatment where the incident may not be reported as boat related. Figure 2 All incidents by MVO postcode 19922010
80% 70% 60% 50% 40% 30% 20% 10% 0
0.4 0.8 0.4 21.3 77.1
NSW
VIC
ACT
WA
QLD
A separate analysis of boating injury statistics in 2007 by Marine Safety Victoria4 showed that two thirds were undertaking a towed water sport at the time of injury, mostly waterskiing (26% of all study participants), wakeboarding (21%), being towed on an inatable (12%) and knee boarding (8%).
Fatalities
The number of boating related fatalities reported to have occurred along the Murray over the study period are shown in Figure 3. The number of fatal incidents involving visitors from states other than Victoria may reect the more diverse origins of high-speed boat racers and skiers. Figure 3 Fatalities by MVO postcode 19922010
20
18
15
10
7
NSW
VIC
Other
4. Follow up study of hospital treated recreational boating injury. Marine Safety Victoria January 2007.
Incident causes
The general causes of incidents are plotted in Figure 4 below. Lack of judgment was by far the dominant cause. Speed contributed to a greater or lesser extent in most incidents, even when speed may not have been considered excessive. For example where an incident is caused by a poorly judged high-speed turn by a towing vessel, the primary cause is recorded as lack of judgment, not speed. Figure 4 Major Incident Cause
Lack of judgement Other*
Fault of machinery
Excess alcohol
Unknown
No proper lookout
Fault of equipment
Hazardous waters Minor injury Excessive speed Serious injury Weather Fatality Navigational error
20 Number of people
40
These results reect analysis by Marine Safety Victorias where tow injury participants mostly indicated there was more than one contributory factor to their injury. Most weight is given to human factors, commonly identifying inexperience, carelessness/distraction, misjudgement, risk taking and technique as contributing to injury.
Cross-border issues
As the majority of boaters on the Murray come from south of the border, there is a need to improve the culture of safe boating among skippers in not just NSW but also in Victoria. Appropriate improvements to boater safety education and consistency of licensing standards should be considered. Inconsistencies in regulations, signage and boating rules between states cause confusion for boaters operating across the border. While improved education may address some inconsistencies, a coordinated approach by Governments is needed to systematically harmonise regulatory provisions to address these anomalies.
Discussion
NSW Maritime undertakes both targeted and reactive programs across the state to deliver safer boating. Licensing, education and compliance activities all contribute to the overall safety program. A key difculty for NSW Maritime in enhancing those programs for boaters on the Murray is that most reside in Victoria. This situation is unique in Australia with no other water body identied where a majority of users reside in a jurisdiction where the safety regulator cannot contact them directly. Marine Safety Victoria undertook an analysis of boating related injuries in 2007 and identied the following possible potential preventive measures: imposition of ski-boat speed limits limits on number of boats in popular locations for towed water sports increased demarcation of areas avoidance/ restriction of participation in shallow water regulation of towrope length wearing of personal protective equipment (lifejacket and helmet) additional boat operator training and licensing responsible boat operation training of observers including training in the operation of a quick-release tow rope system adoption of a progressive learning curve by participants when attempting new tricks formal training in skiing/boarding by qualied instructors improved equipment design (foot bindings, rounded wakeboard edging) education about the risks of alcohol use when participating in towed sports. Although Marine Safety Victoria have identied these key issues, a combined effort is required by both the Victorian and NSW Governments to effectively address and implement change and reform. A Standing Committee on Cross Border Boating would be an effective way develop a compliance campaign involving education, awareness and enforcement programs. Such a committee should be attended by appropriately senior ofcers from NSW Maritime and Marine Safety Victoria, and provide an annual report through senior management to their respective Ministers outlining their work program and key results.
Management options
The stakeholder meetings conducted for this review identied a range of issues which, together with submissions received, and input from NSW Maritime staff, has contributed to the suite of management options identied below. The key boating safety management issues identied have been grouped into the following categories: Speed limits Zoning Towing Compliance and enforcement Licensing and education Vessel res The options for change raised through the consultation process are outlined below:
CATEGORY OPTIONS
Speed limits
1 2 3
40 knot speed limit for the Murray River (ofcial races and race training would be conducted under an aquatic licence) Speed limits during peak usage periods More seasonal 4 knot zones (e.g. 4 knot zone from Capri to the yacht club lagoon in Lake Mulwala from 1 December to 1 May; George Chaffrey Bridge to Charcoal Bend at Mildura) Speed limit for ski tubes of 8 knots No swimming zones within 100 metres of any boat ramp Fishing-only zones Passive activity zones Houseboat mooring zones at Mildura No Slow Tow zones Towing and PWC only zones More off-river ski parks No wash zones Limit tow rope lengths for ski tubes Only one ski tube may be towed at once Maximum ski rope length < 18.5 metres Helmets compulsory for all ski tube users Ban all ski tubes No more than 1 person in a ski tube Ban power turns A no added weight rule to control wake Ban wake assisting devices e.g. fat sacks and power wedges
4 Zoning 5 6 7 8 9 10 11 12 Towing 13 14 15 16 17 18 19 20 21
CATEGORY
OPTIONS
22
Increase in on water Boating Safety Ofcer resources, Assistance from Marine Safety Victoria compliance ofcers, Anti-hoon legislation with vessel conscation powers Helmets for all PWC riders Compulsory lifejackets for all children Demerit points system for boat licences to apply in both states Lower alcohol limits (i.e. less than the current 0.05) Alcohol related boating offences should affect motor vehicle driver licences On-water speed cameras More RBT patrols with Police More stringent boat licence requirements in Victoria Increase boater education in Victoria emphasising basics e.g. which side of the river to pass Better education for PWC riders Use Tourist Centres for boater education Boatsafe volunteer program. Assist BSOs with education (modelled on Fishcare volunteers) Education campaign on the dangers of high speed tow whipping manoeuvres Insurance companies should be required contribute to fund improved boating safety campaigns Improved signage on both banks of the River Compulsory blowers and vents for inboard petrol powered boats Engine service reporting Pink slip pre-registration safety checks for power boats
All submissions to the consultation meetings, brochure and discussion paper will be included in this process.
APPENDIX 1
STAKEHOLDER FOCUS GROUP MEETING REPORTS
Albury/Mulwala
The Albury/Mulwala meeting was held at the Mulwala Ski Club on 19 April. Attendees examined the map of incidents below. [Boating Fatalities and Serious Injuries on the Murray River between the Hume Weir and Lake Mulwala 1992-2010] The key boating safety issues raised were:
PWC riders dont understand the legislation and penalties, and need better education PWC behaviour is the problem, need anti-hoon legislation Restrict maximum beam for recreational vessels to 2.5 m
Education
Increased assistance from the Victorian Government with funding for education Education about driving on the correct side of the river Too many people dont know the correct side of the river to take More education and more signage Education on the dangers of towing, including whipping Inconsistent rules between states cause confusion Make better use of visitor centres for education Victorian licence testing is inadequate, as many Victorian boaters dont know the rules
Vessel res
Pink slips for boats Compulsory fume detectors
Victorian issues
Victoria has skiing in prescribed areas only Off-river ski parks may relieve pressure on the river Serious and minor injuries grossly underestimated as most go unreported into Victoria The reporting rate for injuries may be between 5% and 12% Loss of life in Victoria costs $2 million per person Injury costs are estimated at between $16 and $35 million per annum Large-scale education programs will be difcult to fund in Victoria without Victorian Government assistance and co-operation Problems with accessing the Victorian license database for NSW BSOs undertaking compliance The MOU on data sharing between NSW and Victoria has expired New South Wales and Victorian Ministers need to get together to agree on funding Victoria should be educating their boaters No easy solution for the growing number of vessels on the river The bottom end of Lake Mulwala is okay, but the top end is dangerous as people go there when the main body of the lake is rough Bundalong is a problem as is Phalaris due to skiers Tourism is important to these towns and restrictions might affect numbers The loss of Victorian waterways contributes to an increasing congestion in New South Wales The solution needs to come from the Victorian side Victorians were better skilled when they were required to hold a New South Wales boat licence
RIVER MURRAY REVIEW 12
Moama/Echuca
The Moama/Echuca meeting was held at the Border Inn Moama on 20 April. Attendees examined the map of incidents below. [Boating Fatalities and Serious Injuries on the Murray River around Moama/Echuca 1992-2010] The key boating safety issues raised were:
Education
No-one knows what the signs mean and they are not enforced sufciently Need improved in the boat stickers and signage at boat ramps Volunteer BSOs could give out information Rules between the states should be consistent A national boat registration scheme would promote consistency but would be expensive New South Wales Maritime maps of the river need to be updated, especially those at boat ramps Maps need to show no mooring and no anchoring zones Introduce new measures incrementally Need consistent rules about observers, ours or Victorias? How best to get information into Victoria? Perhaps the insurance industry could assist Need a proper budget for education Need more signs up warning about alcohol abuse More education needed especially in Victoria
Vessel res
Engine service reporting Compulsory blowers and vents Fume detectors would help Pink slips for petrol powered boats might work
Victorian issues
New rules might impact on tourism if they couldnt ski socially The drought has produced a lot more people to the river, this may change when the Victorian lakes have more water People will go elsewhere if the river is too busy its self-regulating The crowds come in bursts of two weeks, its bedlam then the numbers drop away
Mildura
The Mildura meeting was held at the Mildura Rowing Club 21 April. Attendees examined the map of incidents below. [Boating Fatalities and Serious Injuries on the Murray River in the Mildura area 1992-2010] The key boating safety issues raised were:
Education
Visitors from Melbourne dont know local designated areas Improved signage should go hand-in-hand with an improved education program TV ads would be very effective for example the Riverwatch ad Community service announcements on local TV should be explored Insurance companies should chip in to improve boating safety Need better navigation rules education, particularly for houseboat drivers who may not have a boat licence or know the rules
Vessel res
Pink slips for boats might work there may be a lack of qualied people servicing engines mandatory vapour detectors might work
Victorian issues
Can you run the NSW young adults licensing course in Victoria? Boats from other places are the troublemakers, they are not familiar with the local area and rules