CESSNOCK CITY COUNCIL CEMETERY STRATEGY … · Establish a range of clear and concise policies,...

CESSNOCK CITY COUNCIL CEMETERY STRATEGY

JANUARY 2008

Cessnock City Council Cemetery Strategy

CESSNOCK CITY COUNCIL CEMETERY STRATEGY CESSNOCK CITY COUNCIL Insite Economic & Social Planning Pty Ltd (ABN: 76 125 889 572) Address: Suite 1, Level 1, 104 – 106, Vincent Street, Cessnock PO Box 93, Cessnock NSW 2325 Contact: Ph: 4991 4793 Fax: 4990 7551 email: [email protected]

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A 17/12/07 Draft SC

B 19/12/07 Edit GH

C 8/01/08 Final Proof SC

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EXECUTIVE SUMMARY

The Cessnock City Council Cemetery Management Strategy has been developed to examine current service provisions and management procedures and consider options for the future provision of cemetery services.

Council currently operates nine cemeteries across the city, each presenting different management challenges. Whilst Cessnock Cemetery is closed for any new burials (without a reservation) all of the other cemetery locations have capacity for a minimum of twenty (20) years. The shift towards ash interments and lawn cemetery burials has highlighted the significance of both Gordon Williams Memorial Cemetery (Aberdare Cemetery) and the Kurri Kurri Lawn and General Cemetery.

Taking into consideration the evolution of the cemetery and funeral industry and local government’s important role in the provision of services and facilities, the need to establish a long-term direction for the care, control and management of public cemeteries is recognised, as well as the ongoing expectations of procedural and operational improvements.

In line with the purpose of the strategy, a number of conclusions have been drawn and subsequent recommendations made, to provide a clear and consistent direction for the planning, management and operation of cemeteries throughout the Cessnock LGA. These operational improvements and strategic directions take into consideration a number of key drivers including: public expectations; legislative and regulatory requirements; industry standards and trends; consistency with other LGA’s; retainment of the key characteristics of the cemeteries within the LGA; and future demands on the provision of cemeteries.

The following key recommendations have been identified for Council’s consideration:

1. Establish a range of clear and concise policies, procedures and agreements for the management and operation of Cessnock City Council cemeteries.

2. Review the cemetery based fees and charges annually to reflect the management and operation costs, broadening of ash interment options and comparative costs with other LGA’s.

3. Broaden the range of available interment options through the provision of monumental lawn burials and garden ash interments with priority at Greta, Branxton and Millfield cemeteries.

4. Continue to promote both Aberdare and Kurri Kurri cemeteries as sub-regional venues capable of meeting the diverse burial needs of the LGA.

5. Improve the range and distribution of public information on cemetery planning, development and operation through the establishment of appropriate documentation, and a communication strategy with key stakeholders

6. Recognise the heritage value and conservation management of its cemeteries through incorporation of site specific assessments as part of the updating of the Cessnock City Council Heritage Study, actively seeking funding from the NSW Heritage Office for conservation works as well as incorporating appropriate heritage provisions within Council’s policies and procedures.


7. Increase the cemetery administration staffing levels as a means of improving the efficiency and effectiveness in the planning, management and operation of Cessnock City Council cemeteries.


CONTENTS INTRODUCTION 1

PURPOSE 1 STRATEGY 1

1. CEMETERY INFORMATION, TRENDS AND ISSUES 2

1.1 INTERMENT LOCATIONS 2 1.2 INTERMENT OPTIONS 3 1.3 LEGISLATIVE REQUIREMENTS 3 1.4 GOVERNMENT ROLE IN THE PROVISION OF BURIAL

SERVICES 8 1.5 PEAK BODIES 8

2. CESSNOCK CITY COUNCIL CEMETERY SITE ANALYSIS 10

ABERDARE CEMETERY 11 BRANXTON CEMETERY 14 CESSNOCK CEMETERY 17 ELLALONG CEMETERY 21 GRETA CEMETERY 24 KURRI KURRI CEMETERY 28 MILLFIELD CEMETERY 32 ROTHBURY CEMETERY 35 WOLLOMBI FAMILY CEMETERY 38

3. CESSNOCK CITY COUNCIL CEMETERY ISSUES 41

3.1 HERITAGE AND CONSERVATION 41 3.2. BURIAL SPACE LIMITATIONS AND OPTIONS 44 3.3 DEMOGRAPHICS ANALYSIS AND POPULATION GROWTH 54 3.4 FINANCIAL MANAGEMENT 58 3.5 RISK MANAGEMENT 63 3.6 PUBLIC INFORMATION DEVELOPMENT AND

DISSEMINATION 65 3.7 CAPITAL DEVELOPMENT AND MAINTENANCE 66 3.8 CESSNOCK CITY COUNCIL CEMETERY

RESOURCING 68 3.9 POLICY AND PROCEDURES 70

4. FINDINGS AND CONCLUSIONS 71

5. REFERENCES AND SUPPORTING ORGANISATIONS 77

5.1 REFERENCES 77 5.2 SUPPORTING ORGANISATIONS 78

APPENDICES

APPENDIX A CEMETERY POLICY (DRAFT)

APPENDIX B CEMETERY PROCEDURES (DRAFT)

APPENDIX C REQUIREMENTS FOR WORKS WITHIN COUNCIL


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INTRODUCTION Cessnock Local Government Area (Cessnock City) covers approximately 1950 square kilometers within the Hunter Region of New South Wales. The population is concentrated in a thin urban belt between the two major townships of Cessnock and Kurri Kurri. The remainder of the population is located in outlying rural areas. Cessnock is a sub-region of the Hunter Valley, approximately 120 kilometres north of Sydney, 40 kilometres west of Newcastle and 30 kilometres from the coast. Within the Cessnock Local Government Area there are large areas of State Forest, grazing land and areas for viticulture. The district offers a variety of commercial and recreational uses and is home to a diverse range of communities, which come from a variety of different social, cultural and religious backgrounds. The population of Cessnock is currently estimated at 46,208 (ABS, 2006) with an average annual growth rate between 2004 and 2005 of 1.6% (ABS June, 2005). Cessnock City Council administers nine local cemeteries:

i) Aberdare Cemetery (including the Gordon Williams Memorial Lawn Cemetery)

ii) Branxton Cemetery iii) Cessnock Cemetery iv) Ellalong Cemetery v) Greta Cemetery vi) Kurri Kurri Cemetery vii) Millfield Cemetery viii) Rothbury Cemetery ix) Wollombi Cemetery

Purpose The purpose of the cemetery strategy is to:

1. Examine current service provisions and

management procedures, identify opportunities for operational improvement and make recommendations;

2. Consider options for the future provision

of cemetery services, prepare a strategy to implement improvements and make recommendations.

Strategy The strategy has a number of sections which aim to address the identified purpose of the report: Section 1: Cemetery & Crematoria Industry Information and Trends This section summarises basic information on the cemetery and crematoria industry including outlines of interment options, peak bodies and industry trends. Section 2: Site specific information This section identifies and examines each of the nine (9) cemeteries under the care, control and management of Cessnock City Council including location, available interment options, burial capacity and specific site issues. Section 3: Strategic and Operational Considerations This section identifies and examines issues and trends that impact on the operation and strategic direction for the effective planning, management and operation of cemeteries within the Cessnock LGA. Section 4: Findings and Conclusions This section summarises the key findings and subsequently recommends courses of action to make operational improvements and a clear strategic direction for the planning, management and operation of Council’s public cemeteries.


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1. CEMETERY INFORMATION, TRENDS AND ISSUES

This section examines general information, issues and trends relating to the cemetery industry. The specific areas of examination include:

1. Interment provisions 2. Interment options 3. Legislative requirements 4. Governmental role in cemetery

provision and management 5. Peak bodies

1.1 Interment Locations There are principally five (5) main interment locations:

1. Public cemeteries and crematoria are either Crown cemeteries managed by Crown reserve trusts (the majority of available public burial spaces) or local government cemeteries on Crown land or land owned by local government councils.

2. Private cemeteries and crematoria

are primarily located on freehold land and managed as a private entity.

3. Church and family cemeteries are

associated with places of worship or family owned private land. Church cemeteries are normally the responsibility of the relevant diocese, parish councils or equivalent authorities.

4. Site specific crematorium walls have

over the past twenty (or so) years been installed at sites which are generally recognised for their community, cultural or historic significance. Examples include RSL Clubs, sporting venues or military memorials.

5. Scattering or holding of ashes has

become more prevalent with the increasing number of cremations. Ashes can be generally be scattered in just about any location or held (within an urn) by family or friends.


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1.2 Interment Options There are numerous interment options for cemetery locations as summarised:

1. Monumental Burial – traditional covering of burial plot with monumental work (headstones and kerbing). Monumental burials are provided for at all CCC cemeteries.

2. Monumental Lawn – A headstone is placed at the grave (generally on a standard concrete beam) with the balance of the plot covered in lawn. The lawn is mown as part of the routine cemetery maintenance. Monumental lawn burials are not provided for at any CCC cemeteries.


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3. Columbarium Walls - ashes are installed in a columbarium wall which has a standard plaque and bud vase. Columbarium walls are currently located at Kurri Kurri and Aberdare (Gordon Williams Memorial Lawn Cemetery) cemeteries. These facilities are capable of being installed at all CCC cemeteries.

4. Modern Lawn - A standard plaque is placed at the head of the plot and the balance of the plot is covered in lawn. The standard of lawn maintenance is significantly higher compared to a monumental lawn cemetery. Modern lawn cemeteries are provided for at Kurri Kurri and Aberdare (Gordon Williams Memorial Lawn Cemetery


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5. Ash Interments in Garden – ashes are interred within a garden setting at a cemetery. A standard plaque is generally used. Ash interments in garden areas are currently provided at Kurri Kurri and Aberdare.

6. Native/ Woodland Ash Interments – ashes are interred within a native vegetation area within a cemetery setting. A standard plaque is generally used. An alternative option is the provision of a native garden for ash interments. Woodland ash interments and native garden interments are not provided for in any CCC cemetery.


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7. Memorials – ashes are generally retained or scattered and a memorial is established at a cemetery. The memorial generally has a standard plaque and is incorporated into garden areas. Memorial gardens are located at Kurri Kurri and Cessnock cemeteries.

8. Crypts and Mausoleums – coffins are interred within an above-ground structure which can be re-opened to permit further interments. Due to the significant cost of crypts and mausoleums their development has substantially declined over the past fifty (50) years. – Would we allow these in our cemeteries?


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1.3 Legislative Requirements

Local Government controlled cemeteries were once subject to Ordinance 68 of the old Local Government Act (1919). The 1993 Local Government Act does not include any cemetery specific legislation. As such, the care, control and management of cemeteries are covered by a range of legislations, charters and guidelines. Following is a listing of the key relevant legislative provisions: Local Government Act, 1993 Public Health Act, 1991 Public Health Regulations, 1991 Occupation Health & Safety Act, 2000 Privacy and Personal Information Protection Act, 1998 State Records Act, 1998 Heritage Act, 1977 Conversion of Cemeteries Act, 1974 Fair Trading, 1987 Coroners Act, 1980 Crown Lands Act, 1989 Human Tissues Act, 1993 Births, Deaths and Marriages Registration Act, 1995 Anti-Discrimination Act, 1979

The inter relationship of both legislation and regulatory information required in cemetery operations is of a complex nature. All related policies and procedures will be required to be clear and concise to be compliant with legislation/ regulations and transparent to staff, customers and all external agents.


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1.4 Government Role in the Provision of Burial Services Both State and Local Government have had a long standing involvement in various aspects of burial and cemetery management, as follows:

1. The provision and maintenance of public land for burial

Burial space has been provided by the State Government through the provision of cemeteries for over 200 years. The NSW Department of Lands is the main land owner of cemeteries in NSW although the management of these cemeteries is undertaken by either a Trust or by a local government body. Local government manages and operates many of NSW cemeteries.

2. Planning for land uses State and local government undertake land use planning and designate broad land use zones. Competing interests for land can make cemeteries and crematoria development less competitive than other uses within a close proximity to urban areas.

3. The administration of statutes

governing cemeteries, including health standards

State Government legislation administering cemeteries and crematoria includes the Crown Lands Act 1989, the Local Government Act 1993, the Necropolis Act 1901, the Occupational Health and Safety Act 2000, the Public Health Act 1991, the Environmental Planning and Assessment Act 1979 and the regulations associated with these Acts. As previously noted, there is an array of legislation and regulations that provide the framework for the operation, management and planning of cemeteries.

4. The provision of affordable interment, including the interment of deceased, destitute persons

State Government has played a role in the provision of affordable interment by providing land for burial purposes; through management by volunteer trusts; and the provision of funds for interment of deceased destitute persons. Some local Councils provide a discounted fee to the State to further assist in the provision of burial space for deceased, destitute persons.

Within the Cessnock LGA, the main provider of cemetery space and services is CCC. As with most areas, Council is the key service provider and an integral stakeholder in the planning, development and operation of cemeteries and their associated services. The balance of interments are catered for at private cemeteries outside of the LGA, church cemeteries, interments outside the LGA and largely through personal ash scattering or holding of urns.

1.5 Peak Bodies The cemetery, funeral and crematoria industry has two (2) peak industry bodies:

1. Australasian Cemetery and Crematoria Association (ACCA)

2. NSW Cemetery and Crematoria Association (CCA)

Both bodies provide ongoing networking, training and lobbying support to its members. Over the past five (5) years both organisations (in particular the CCA) have researched and produced a range of guidelines and standards to assist in improving the overall professional standards of the industry. The guidelines have been prepared through industry working groups and aim to comply with legislative requirements and current best practice standards. Specific examples of completed guidelines include: Guidelines for safe working practices in

cemeteries and crematoria in NSW Cemetery ornamentation guidelines Guidelines for planning an exhumation

including removal of coffin from cemetery

Guidelines for burial or creation of pathological samples in NSW

Guideline to cemetery service standards in NSW


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In addition, both the ACCA and CCA assist in identifying trends and emerging issues. Over the past few years both organisations have noted the following trends impacting on local government managed and operated cemeteries:

a. Increasing focus by local government in the planning, management and operation of cemeteries

b. Increased expansion of local governments role in the provision of funeral services including the development and operation of crematoria and grave digging

c. Over the past twenty (20) plus years the

increased role of the private sector in the provision of cemeteries (note: private contractors have traditionally undertaken the funeral director and grave digging roles associated with the

funeral industry, however there has been a shift towards the actual provision of cemeteries – particularly modern lawn cemeteries and associated ash interment options)

d. Overall decrease in the proportion of traditional burials, with a subsequent increase in ash interments and modern lawn cemetery interments

e. General, improved standard of development and maintenance at public cemeteries (largely put down to the increased focus by local government on asset management and need to participate in a competitive market)

f. Increased focus on family history searches and public tours of major cemeteries

g. Increased number of legal disputes (which is reflective of the general litigious trends in Australia)


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2. CCC CEMETERY SITE ANALYSIS This section identifies and examines each cemetery under the care, control and management of CCC. Site specific issues are identified and examined. Aberdare Cemetery Branxton Cemetery Cessnock Cemetery Ellalong Cemetery Greta Cemetery Kurri Kurri Cemetery Millfield Cemetery Rothbury Cemetery Wollombi Cemetery In 1968 the care, control and management of the cemeteries became the responsibility of Cessnock City Council. As such Council is responsible for a range of activities including all record keeping (both personal details and plans of cemeteries), allocation of lots both for burial and for future use, all maintenance, liaison with key external agents (Funeral Directors, grave diggers and monumental masons), the work practices carried out within the cemeteries and public safety. Prior to 1968 the recording and maintaining data of each cemetery was undertaken by a range of interested people, historic groups, religious organisations and local Funeral Directors. It is known that the current records have errors and missing information. This is not unique to other local government areas.


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ABERDARE CEMETERY and GORDON WILLIAMS MEMORIAL LAWN CEMETERY

Assessment Number 187690 Deposited Plan/Section/Lot Number DP 755215 Pt Address Greta Street, Aberdare 2325 Parish Cessnock Land Area 40,313.84 sq m Dedication Date September 19, 1906Cemetery Type General and Lawn First Recorded Burial November 3, 1909 Number of Recorded Burials 1708 Number of Reservations -General/Lawn

261

Number of Reservations – Ashes 300 Denominations Anglican

Catholic Methodist Presbyterian Baptist Congregational Salvation Army General/Non Denominational

Local Significance Yes Regional Significance No Issues A Masterplan has been prepared and

endorsed by Council for this cemetery. The Plan includes layout for future development of the whole cemetery.

Fencing requires replacement on northern, western and eastern sides.

Informal roadway access except for lawn section.

Seating only in older lawn section. Stockpiles on western side are eyesore. Motorbikes using cemetery as a

thoroughfare The corridor of trees extending along

the main entry road of the cemetery has diminished over the past few years with the removal of a number of substantial pine trees. No re-plantings have taken place to date.


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History and Heritage Value The cemetery provides a record of the background and lifecycle of the local community, and gives insight into the hazards of mining. One interesting historical feature is the memorial gates at the entrance to the cemetery that provides a memorial to soldiers who served during the First World War. The gates were constructed for the sum of 250 pounds and were opened by Mrs C Jones and Mrs I Villis on September 5, 1925 (Pike, Walker & Assoc 1994). The Gordon Williams Lawn Cemetery was established in 1991 as a means of broadening the interment options to the community and recognition that the Aberdare Cemetery would cater for the long-term needs of Cessnock (and surrounds) due to the limitations of the Cessnock Cemetery. Site Characteristics The Aberdare cemetery lies on the northern side of Greta Street, Aberdare. Access to the site is obtained directly from the main road through memorial gates. There is a main access road that runs from the main entrance in a north south axis through the centre of the site. The main access is bitumen sealed across the entrance with concrete edging. The road is in poor condition. A further access road lies perpendicular to this and divides the lawn cemetery. Another access road forms a T intersection with the road dividing the lawn cemetery. This road divides part of the lawn cemetery from the monumental section. These two (2) roads are sealed and in excellent condition. There is vacant land on the northern, eastern and western boundaries with dense bushland to the north and east of the site. To the west, the site adjoins vacant land. The fencing along these three sides requires replacement, having been damaged in bush fires. In the monumental section, the graves lie on either side of the main access road in a grid pattern. There are relatively few graves given the size of the site and there is considerable room for expansion in the future. There are a number of large trees near the main entrance with scattered eucalypts over the western areas of the site. There is a white iron fence in the vicinity of the property entrance and other treated pine fencing along the road frontage with associated landscaping and small hedges providing a visual and acoustic buffer to the main road. There is an existing compound on the western side of the site which is defined by a chainwire fence. A large amount of soil and gravel is stored on the site adjacent to the compound on the north-western corner of the property. Water facilities are provided at various locations within the site, as are garbage bins. The Gordon Williams Memorial Lawn Cemetery exists on the southern side of the Aberdare General Cemetery. Existing landscaping that is provided on the southern side of the Lawn Cemetery is integrated with the general landscaping at the entrance and along the front fence of the site. There is provision within the lawn cemetery for standard burials or for interment of ashes in either the columbarium wall, garden or a grave plot. The original layout of the lawn cemetery is now occupied and a new area has been prepared and burials have begun to take place there. There are 3 gardens for interment of ashes dividing the lawn cemetery from the vacant area of the site.


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BRANXTON CEMETERY Assessment Number 224527 Deposited Plan/Section/Lot Number

DP 758153 Sec 3 Lot 3 and 10 DP 758153 Sec 2 Lot 9 DP93471 Lot 7005

Address East Branxton 2335 Parish Land Area 2,064.4 sq m Dedication Date November 16, 1883 Cemetery Type Monumental First Recorded Burial January 11, 1852 Number of Recorded Burials

980

Number of Reservations 79 Denominations Anglican Local Significance Yes Regional Significance Yes Issues Classified under National Trust of Australia (NSW)

Identified as an item of Region Significance under Schedule 2 of the Hunter Regional Environmental Plan 1989.

Vehicular access appears difficult No designated internal roadways Cars for sale along front fence of cemetery


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History and Heritage Value George Wyndham (founder of Wyndham Estate) and other wealthy families who had agricultural properties in the area first settled the Branxton area in the 1800’s. The workers required for these agricultural pursuits and the number of coal mines operating nearby triggered the establishment of the township. The Branxton General Cemetery is classified under the National Trust of Australia (New South Wales) and is identified as an item of Regional Significance under Schedule 2 of the Hunter Regional Environmental Plan, 1989. Site Characteristics The Branxton Cemetery lies on the northern side of Maitland Street (New England Highway), Branxton. The property extends through to Lindsay Street in the north. The property is almost level with a slight slope to the north. The northern portion of the lot falls away much steeper, with a gentle slope draining the property to the Lindsay Street road reserve. There is an existing dwelling to the west of the site and vacant lot to the east. There are also a number of dwellings on the northern side of Lindsay Street. There are number of trees along the northern boundary with scattered semi-matured shrubs along the frontage of Maitland Street. The property has its main entrance on the southern boundary fronting Maitland Street. A grassed 3 to 4 metre wide path extends in a north-south direction from Maitland Street to Lindsay Street. Headstones are arranged in rows running north-south either side of this pathway. Existing improvements include an iron fence along the Maitland Street boundary, a pergola, fencing and signs. The pergola lies at the main entrance to the property, straddling the grass pathway. A timber and wire fence with a steel turnstile runs along the northern boundary, preventing the cemetery becoming a thoroughfare between Maitland to Lindsay Street. There is a new sign at the front of the cemetery indicating that it is Branxton General Cemetery and a Council contact telephone number for public information. The site has considerable space for future expansion.


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CESSNOCK CEMETERY

Assessment Number 224543 Deposited Plan/Section/Lot Number

DP 755252 Pt, DP 784394 Lots 1 & 2 and DP 755252 Lot 152

Address Wine Country Drive, Cessnock 2325 Parish Pokolbin Land Area 30,522.481 sq m Dedication Date March 13, 1877 Cemetery Type Monumental First Recorded Burial February 21, 1833 Number of Recorded Burials 7539 Number of Reservations 427 Denominations Anglican

Catholic Methodist Presbyterian Baptist Congregational Jewish 4 Square Gospel General/Non Denominational Salvation Army Wesleyan Christadelphian

Local Significance Yes Regional Significance Yes Issues Classified by National Trust of Australia (NSW)

Identified as an item of Regional Significance under Schedule 2 of the Hunter Regional Environment Plan, 1989

This cemetery is closed except for existing reservations and re-opening of existing burial plots.

There are approximately 650 burials at this cemetery where the burial is recorded but the actual location is not.

There is a memorial garden on the western side of the cemetery in memory of babies buried in unlocated graves.

Gravedigging spoil in vehicular turning circle – this is used as a rubbish heap

Internal access roads appear to receive minimal or no maintenance and appear to have been created by regular vehicular use – not formally created

There is a 3.624 hectare lot adjoining the western boundary of the cemetery which is reserved for future expansion of the cemetery. This land has not been cleared and does not form part of the existing cemetery.


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History and Heritage The area of Nulkaba to the north of Cessnock was laid out as a government town in 1884. This area was intended to be an administrative centre for the rural settlements of Cessnock and Pokolbin, with large portions of land being set aside for public buildings and the cemetery. Cessnock Cemetery was originally Cessnock’s only burial ground since its inception as a mining town. Whilst some burials pre-date the area’s mining history. Many of the graves are a testament to the mining disasters that have affected the community (Pike, Walker & Assoc, 1994). The cemetery has been classified by the National Trust of Australia (New South Wales) and listed as an item of Regional Significance under Schedule 2 of the Hunter Regional Environmental Plan, 1989. The portion of vacant land in the south eastern corner of the cemetery was the original location of St Luke’s church that was the first church to be constructed in the South Maitland Coalfields. Construction of St Luke’s began in 1866 and was completed in 1867. Built by Mr James Love and Mr John Melville, the church was constructed originally of local ironbark with shingle roofing. A new St Luke’s church was constructed near the Nulkaba Public School in 1890 with the demolition of the original St Luke’s in 1906. By 1909 the new St Luke’s had become isolated from the densely populated areas of the community and so St John’s church was erected in Westcott Street, Cessnock. In 1954 the new St Luke’s church was removed from its site in Nulkaba and transferred to its current location at Bellbird where it is used as a hall.

Site Characteristics

The Cessnock Cemetery lies on the corner of Wine Country Drive, and Kerlew Street, Nulkaba. There is also a large portion of uncleared land that forms part of the cemetery. This 3.624 hectare lot that adjoins the western boundary of the cemetery was reserved for future expansion of the cemetery. The clearing of this land has never taken place and essentially, it does not form part of the existing cemetery. The Cessnock Cemetery lies adjacent to the Calvary Retirement Community that adjoins its southern boundary and has direct views to the historic St Patrick’s Church on the northern side

of Kerlew Street. Land on the eastern side of Allandale Road currently exists as cleared grazing land. Post and rail fencing is provided along Kerlew Street and the western boundary. Wire and timber post fencing separate the site from the Calvary Retirement Community to the south. There is a chainwire fence separating the cemetery from what was previously a market garden in the south western corner of the site. There is landscaping along the eastern boundary providing an acoustic and visual barrier to Allandale Road. This garden area appears to receive little or no maintenance. Its appearance is very unattractive from Wine Country Drive. The cemetery is generally flat. There are two (2) main entrance roads, each approximately 6 to 8 metres wide running from Kerlew Street in a southerly direction into the cemetery. There is also a sealed pedestrian pathway entering the property from Wine Country Drive frontage extending in a westerly direction. These access ways give formality to the grid layout of the cemetery, with graves laid out in rows running on a north south axis. Apart from the access ways, existing improvements on the site include signage, water facilities and other structures. There is an existing weatherboard and tile structure a few metres from the Wine Country Drive frontage. This appears to be an old bus shelter, however dense vegetation would prevent it from being used on a regular basis. Water facilities are provided in a number of locations within the site. Small signs marked “Water” indicate these locations. There is a new sign fronting Wine Country Drive identifying the cemetery as Cessnock General Cemetery and a Council contact telephone number for public information. There are new denominational signs throughout the cemetery. A garden has been constructed towards the western boundary. This garden is bordered by sandstone blocks and had a central plaque stating “This plaque is erected in memory of babies buried in unlocated graves in this cemetery”. Garbage facilities are provided at a number of locations within the site.


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ELLALONG CEMETERY


DP 650540 Lot 1 and DP 93602 Lot 7006

Address Helena Street, Ellalong 2325 Parish Ellalong Land Area 20,257.99 sq m Dedication Date July 27, 1863 Cemetery Type Monumental First Recorded Burial December 8, 1864 Number of Recorded Burials 710 Number of Reservations 100 Denominations Anglican

Catholic Local Significance Yes Regional Significance No Issues Shallow rock shelf restricts burials to single

depth in most areas Posts are broken off at ground level on fence

fronting Helena Street – fence needs replacing urgently. (Complete)

Ground is very uneven


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History and Heritage Value Ellalong was laid out as a town in the 1850’s. The population in the district soared in the 1920’s with the opening of the Kalingo mine in 1922. Many of the graves in the Ellalong Cemetery are not marked with headstones. There are only two (2) denominations at this cemetery – Anglican and Catholic. At one time there was a fence dividing these sections. Site Characteristics The Ellalong Cemetery lies in the central eastern area of the Ellalong township bounded by Vulture Street to the north and Helena Street to the south. The site is accessed via Helena Street with the northern area of the site remaining uncleared (there is no access via Vulture Street). The site has views to the south over some portions of the Ellalong township to the uncleared mountain ranges behind. The property is almost level, located on the crest of a knoll falling away to each of the boundaries. Existing dwellings are located on the property to the east, with further dwellings situated on the southern side of Helena Street. Adjoining the boundary is the Ellalong Public School and playground. There are a number of existing trees along the eastern and western boundaries. Graves are arranged in rows running in a north south direction. Two unformed laneways run in a north south direction through the site. These appear to be used for entry for both pedestrians and vehicular traffic. The use of these pathways and the location of unmarked graves have made the ground surface uneven. Fencing on the eastern northern and western boundaries is timber post and wire. The fence on the southern boundary along Helena Street is wire and timber and is in a very poor condition. Some of the posts have rotted off near ground level and the fence is leaning in places. There are pipe and wire gates in this fence. There is a water service located at this fence line.


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GRETA CEMETERY


DP 758474 Sec 27 Lots 1-11

Address Wyndham Street, Greta Street, Hunter Street and Evans Street Greta – Access via Evans Street

Parish Branxton Land Area 37,901.261 sq m Dedication Date October 17, 1876 Cemetery Type Monumental First Recorded Burial May 6, 1822 Number of Recorded Burials 1554 Number of Reservations 115 Denominations Anglican

Catholic Methodist Presbyterian Wesleyan

Local Significance Yes Regional Significance No Issues Large number of unlocated graves There are more than 550 burials in

unallocated graves in this cemetery. Shallow rock shelf on western side of

cemetery allows for only single depth graves in some areas

One unformed road bisects the cemetery. It is little more than a track.

There is no formal turning area to allow vehicles to exit the cemetery

Rubbish heap at northern end of cemetery is an eyesore


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History and Heritage Value The township of Greta was first surveyed in 1842 and was named Greta in 1843. When coal was discovered in the area, Greta became similar to other small towns in the district – recognised as one of a number of small mining communities in the coalfields of the Hunter Valley. From 1939 to 1949 Greta became the home of one of the largest army training camps of the Second World War. In 1949 the army training facilities were converted into a migrant camp, providing the first home for thousands of immigrants. The migrant camp operated in Greta until the early 1970’s and was one of the most influential periods in the history of the Greta township. An interesting fact about the Greta Cemetery is the number of unmarked graves. In 1984 a study confirmed the burial of at least 568 people at the cemetery whose graves are not now identified (Delaney 1984). Site Characteristics Greta Cemetery is bounded by Wyndham, Hunter, Greta and Evans Streets, Greta. Wyndham, Evans and Hunter Streets are sealed in this location with Greta Street being an unformed. There is no kerb and guttering provided for any of the boundaries. Formal access is via Evans Street. The site slopes towards Hunter Street. There are a large number of graves aligned in rows running adjacent to the laneway. The majority of the graves are located centrally within the property, with significant room for expansion towards all boundaries. There is a rock shelf located on the western side of the laneway towards the top of the slope. This rock prevents graves being dug double depth in some areas. There are a number of older graves in a state of disrepair and numerous unmarked gravesites. The Greta War Cemetery and garden lies in the southern corner of the property and is nearly fenced with manicured lawns and landscape improvements. This is maintained by the RSL. There are existing dwellings on the western side of Evans Street. Existing improvements include post and wire fencing around the cemetery perimeter. Timber gates and post and rail side panels mark the formal access from Evans Street. There are a number of semi-mature trees and shrubs along the Evans Street frontage with scattered large trees on the northern and southern corners of the site. A water tap is provided near the Evans Street entrance to the cemetery. There is new signage indicating that this is Greta Cemetery and giving a Council contact telephone number for public information.


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KURRI KURRI CEMETERY


DP 755231 Pt

Address Hospital Road, Weston 2326 Parish Heddon Land Area 61,427.79 sq m Dedication Date August 22, 1903 Cemetery Type Monumental and Lawn First Recorded Burial June 26, 1876 Number of Recorded Burials 8208 Number of Recorded Interments – Garden/Walls

393

Number of Reservations -General/Lawn

374

Number of Reservations – Ashes

164

Denominations Anglican Catholic Methodist Presbyterian Baptist Congregational General/Non Denominational Salvation Army Seventh Day Adventist

Local Significance Yes Regional Significance Yes Issues Classified by National Trust of Australia

(NSW) Listed a an item of Regional Significance

under Schedule 2 of the Hunter Regional Environmental Plan, 1989

Drainage is a huge problem on the northern side of the cemetery

Stockpiles are an eyesore Vandalism is a noted problem in this

cemetery primarily as the cemetery is extensively used as a pedestrian access route linking Kurri Kurri (Margaret Johns Park) and South Weston.

Seating is only provided in lawn section and near the Stanford Mine Disaster Memorial.


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History and Heritage Value Kurri Kurri was proclaimed as a town in 1902 and owes much of its history to coal mining in the area. One interesting feature of the cemetery is an obelisk which stands as a reminder to the Stanford Merthyr mining disaster in 1905. The cemetery also reflects some of the town’s involvement in two world wars (Pike, Walker & Assoc 1992). According to Pike, Walker & Assoc (1992), 1920’s cast iron timber garden seats have been removed. The cemetery is classified by the National Trust of Australia (New South Wales) and is listed as an item of Regional Significance under Schedule 2 of the Hunter Regional Environmental Plan, 1989. Following the initial success of broadening the interment options at Aberdare Cemetery through the establishment of the Gordon Williams Memorial Lawn Cemetery (and ash interment options), a lawn cemetery and ash interment options (garden and columbarium walls) commenced operation in 1996. Site Characteristics Kurri Kurri Cemetery lies on the eastern side of Hospital Road, Weston. The site exists as two lots. The first lot comprises the cemetery area itself, and the second existing as a ten metre vegetated buffer around the site. The site is almost level and is surrounded to the north, south and east by dense vegetation with existing dwellings located on the western side of Hospital Road. Kurri Kurri General Cemetery There is an unsealed access road 10 metres wide which runs on an east west axis through the site with the main entrance from Hospital Road on the western boundary of the property. Small brick walls with associated landscaping mark the cemetery access. There is an existing fence constructed of galvanised steel posts and mesh that extends along the property’s western boundary and a 2 metre high chainwire fence bounds the other three sides of the property. There are a number of mature eucalypts in the northern areas of the site.

Drainage is a problem on the northern side of the cemetery. The cemetery is very flat with virtually no fall so drainage is almost non-existant. There is also a drainage problem around and in old monumental sites where the ground has sunk around monumental work and, because of the clay based soil, water lies for quite some time. Within the site, there are a number of unsealed paths which extend from the main access road in north south directions, dividing the cemetery into a very formal grid layout. Graves are laid out within these sections in rows that run north south. Denominational signage is in excellent condition. There are stockpiles of soil and waste products from the cemetery stored on the south eastern side of the cemetery. Water and garbage facilities are provided at various locations within the cemetery. A memorial garden for babies in unidentified graves has been installed. Kurri Kurri Lawn Cemetery The Kurri Kurri lawn cemetery lies in the south eastern corner of the Kurri Kurri General Cemetery. A camellia garden is located along the Hospital Road frontage. To the south there is a colourbond and lattice stepped fence providing a visual barrier to a vacant lot. Gardens are located within the four (4) stepped areas along the length of the fence. Manicured lawns extend throughout the lawn cemetery. The cemetery is divided from the general cemetery by a small pedestrian path approximately 1 metre wide, and a small garden containing Agapanthus. Columbarium walls are located near the main entrance to the general cemetery, approximately 100 metres away. A formal access to the lawn cemetery consists of four brick pillars and an exposed aggregate driveway. Vehicular and pedestrian access is available direct from Hospital Road. Railway sleepers define the internal road whilst garden seats are located throughout the site.


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MILLFIELD CEMETERY

Assessment Number Deposited Plan/Section/Lot Number

DP 93001 Lot 7001 and DP 93000 Lot 7005

Address Crump Street, Millfield 2325 Parish Ellalong Land Area 26,327.26 sq m Dedication Date September 21, 1901 Cemetery Type Monumental

Columbarium wall First Recorded Burial November 24, 1914

Number of Recorded Burials 298 Number of Reservations 45 Denominations Anglican

Catholic Methodist Salvation Army General/Non Denominational

Local Significance Yes Regional Significance No Issues Listed in National Trust of Australia (NSW)

cemeteries list Drive through access could be achieved with

removal of 1-2 immature trees and minimal roadworks on Hayes Road.

More than ½ the cemetery is uncleared vacant land allowing for many years operation.


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History and Heritage Value No historical information has been located. Site Characteristics The Millfield Cemetery is located on the western side of Hayes Road at the intersection of Hayes Road and Crump Street, Millfield. The property gently slopes to the north. There is a 20 metre strip of remnant trees separating the cemetery from Hayes Road. It appears that these trees are contained within the lot that forms part of the cemetery. To the south, the site is bounded by uncleared property. Grazing land is located to the west. On the northern side of Crump Street there are a number of existing large trees providing a visual buffer to the timber mill which exists on the corner of Wollombi and Hayes Roads. The property has a number of graves running in well defined rows on a north south axis. There are a variety of headstone shapes, sizes and designs dating from the early 1900’s to present. There are a number of older headstones which are in a state of disrepair. Crump Street is partially formed with a gravel access Road extending from Hayes Road along the northern boundary of the property. There is a small clearing in the road reserve which appears to be utilised as a parking area for the cemetery. Current improvement include fencing and signage, as well as the provision of water facilities. The northern boundary is defined by a timber picket fence with brick pillars and iron gates defining the access to the cemetery. Timber post and wire fencing mark the southern, eastern and western boundaries. There is galvanised steel gate in the south eastern corner of the cemetery. It would be very simple to provide through access for the hearse by removal of 1 or 2 small trees near the gateway and minimal roadwork. Whilst there are currently no sealed pathways within the cemetery, there is a path approximately 4 to 6 metres wide which extends from the access gate running in a north south direction. There are a number of minor pathways extending in an east west direction which divides the burial areas into section. These paths are defined by the lack of grass as a result of foot and vehicular traffic and by the layout of the graves. Signage identifies the cemetery as Millfield General Cemetery and a number of signs within the cemetery identify the various denominations. The entrance sign also provides a Council contact telephone number for public information. The denominational signs are in excellent condition. There is a single tap located near the entrance gate providing water to the site. The road reserve is scattered with large Eucalypts providing shade to the ‘parking’ area. There are a number of trees standing within the boundaries of the site. There is extensive room for expansion of the burial areas, with approximately two thirds of the fenced area of the cemetery remaining vacant.


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ROTHBURY CEMETERY

Assessment Number Deposited Plan/Section/Lot Number

DP 70352 Lot Pt

Address Wilderness Road, Rothbury Parish Rothbury Land Area 7,599.01 sq m Dedication Date October 24, 1882 Cemetery Type Monumental First Recorded Burial January 9, 1904 Number of Recorded Burials 192 Number of Reservations 9 Denominations Anglican Local Significance Yes Regional Significance Yes Issues Classified by National Trust of Australia

(NSW) Listed as an item of Regional Significance

under Schedule 2 of the Hunter Regional Environmental Plan, 1989

Access from Wilderness Road is via an unformed track, across a cattle grid – access appears to be rarely used

Emma’s Cottage on southern side of cemetery – new home under construction on northern side


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History and Heritage The site of Rothbury (Wilderness) Cemetery was the original location of St Paul’s Church, which was constructed by Reverend Alfred Glennie and opened on March 12, 1868. The church was affectionately called Wilderness Church because it had been built on a property called “Wilderness” which was owned at the time by the Holmes family. Prior to the construction of the church, Rev Glennie held fortnightly services at the Holmes homestead on the “Wilderness” property. The old slab and shingle roofed church was demolished around 1968 (Delaney, 1982). The organ from the church is located at Smyth’s Funeral Parlour at Cessnock. The cemetery contains the graves of early pioneering families of the Pokolbin area. The arrangement of graves into family groups records the importance of the families who pioneered the development of the district (Pike, Walker & Assoc, 1992). Family groups represented include names such as Campbell, Tyrell, Wilkinson, Cant, Hungerford, Wills, Holmes and Duggan. The Rothbury Cemetery is classified by the National Trust of Australia (New South Wales) and is included as an item of Regional Significance under Schedule 2 of the Hunter Regional Environmental Plan, 1989. Site Characteristics The Rothbury Cemetery lies approximately 500 metres north of Wilderness Road, Rothbury. The site is landlocked by Lot 4 DP 239505. The property is almost entirely level. The site has views to surrounding properties and vineyards and is in close proximity to a dwelling house, to the south east of the site, with ‘Emma’s Cottage Guesthouse’ to the south. There is a house under construction on the northern side of the cemetery. The cemetery is accessed via an access easement from Wilderness Road. The access road is narrow, unformed and appears to be rarely used. The property has a number of graves arranged in rows running north south. The graves are arranged in family groupings. As with the majority of cemeteries, there are a number of headstones that are in a state of disrepair and a number of grave sites which are unmarked. There are no formed paths/accessways within the cemetery and no structures erected. Other than the existing trees and grave monuments, the property is entirely grassed. Existing improvements to the site include post and wire fencing with a galvanised gate. The cemetery has Casuarina trees on either side of the access gate with additional stands in both north east and north west corners of the property. There is a sign at the Wilderness Road access gate naming the cemetery and providing a Council contact telephone number for public information. There are no water services available to the site.


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WOLLOMBI CEMETERY

Assessment Number 145268 & 145250 Deposited Plan/Section/Lot Number

DP 759103 Sec 12 Pt

Address Maitland Road, Wollombi Parish Corrabare Land Area 7,794.62 sq m Dedication Date February 15, 1849 Cemetery Type Monumental First Recorded Burial August 23, 1830 Number of Recorded Burials 1000 Number of Reservations 70 Denominations Anglican

Catholic Local Significance Yes Regional Significance No Issues Very little parking available – roadside only

Vehicular access (hearse) difficult during wet weather

No designated road access or internal roads


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History and Heritage Value “Wollombi cemetery ……. Contains the graves of early settlers, assigned servants, soldiers who fought against Napoleon, Irish political prisoners, distinguished churchmen, medical men and at least one poet” Gosford Star, Wednesday September 11, 1974. Since the first settlement of the township, the Wollombi Catholic cemetery was located adjacent to St Michael’s Church near Cuneen’s Bridge on the north western outskirts of the village. During a severe flood in 1893 the church and cemetery were badly damaged and the following year the church was rebuilt in its current location in central Wollombi. Following the flood, some headstones were recovered and moved to the current cemetery site. Even now, farmers ploughing the field on the site of the former church and cemetery come across headstones that were buried by the flood over 100 years ago. Some of the recently found headstones can be found at the Wollombi Museum or at St Michael’s Church. The current site of the Wollombi Cemetery was formerly known as the Anglican Cemetery. Site Characteristics The Wollombi Cemetery is located on the northern side of Maitland Road (Main Road), Wollombi. The site enjoys views to the north of the timbered mountains beyond the cleared valley floor. Views to the west and south include portions of the Wollombi township itself. The setting of the cemetery is a distinctive feature and has aesthetic significance within the Wollombi village (Pike, Walker & Assoc, 1994). The site slopes moderately to the north, draining to the Millpond approximately 15 metres beyond the property’s northern boundary. Whilst the slope over the majority of the site is fairly consistent, the north eastern and north western corners of the cemetery fall away at a steeper gradient than the remainder of the land. The northern half of the property is affected by the 1 in 100 year average recurrence interval flood event. The property has a large number of graves in rows running north south. All headstones face east, with the majority being produced from sandstone that was quarried in the local area. There are a large number of damaged headstones, some of which are fallen, broken, or have been dislodged from their original locations. According to Pike, Walker & Assoc, (1994) the cemetery’s continued use from 1846 provides a wide array of monument styles, with a good range of stonemason quality work from the 1850’s-70’s. Current improvements to the site include fencing and signage. Fencing surrounding the property is constructed of timber post and rail, with timber pedestrian and vehicular access gates. There is a sign identifying Wollombi Cemetery and a Council contact telephone number for public information. This sign and the denomination signs are in excellent condition. There are plantings of native shrub species (Callistemon sp.) along the road frontage. Other than this, landscaping is limited to a single existing tree near the far northern boundary of the property. There are no water services provided to the site.


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3. CESSNOCK CEMETERY ISSUES

This section identifies and examines issues and trends impacting on the operation and strategic direction for the effective planning, management and operation of cemeteries within the Cessnock LGA. The specific areas of examination include: 1. Heritage and conservation of cemeteries

2. Burial space limitations and opportunities

3. Demographic analysis and population

growth

4. Financial management

5. Risk Management

6. Public information development and dissemination

7. Capital development and maintenance of cemeteries

8. CCC cemetery resourcing

9. Policy and procedures

3.1 Heritage and Conservation General Local Government controlled cemeteries were once subject to Ordinance 68 of the old Local Government Act (1919). The 1993 Local Government Act does not include any cemetery specific legislation. As such, the conservation and heritage management of cemeteries is covered by a range of legislations, charters and guidelines. In terms of heritage and conservation, there are a number of Australian Standards and Conservation Charters which apply to the management of cemeteries including the three (3) key strategic frameworks:

1. Burra Charter – provides standards and processes relevant to the conservation of the cultural values of historic places

2. Natural Heritage Charter – provides processes and standards for managing native vegetation and the natural environment.

3. Australian Standards 4204-1994 – Headstones and Cemetery Monuments – sets out the requirements for new grave plots and monumentation.

The National Trust provides clear guidelines for the implementation of heritage assessment and the conservation management of local cemeteries. In any cemetery conservation or maintenance program the National Trust recommends that all features of the cemetery, both cultural and natural, must be taken into consideration. The trust has adopted the Burra Charter and advocates it’s principles, all of which apply to the conservation of cemeteries. Two of the most basic concepts should always be observed:

Do as little as possible, but as much as necessary.

Wherever possible, treatments should be reversible.

The first stage of any conservation work is to decide why the work should be done, what is to be done (or what the problem might be), and how this work should be done. For cemeteries, as for other places, there are three main steps to managing and conserving heritage significance.

1. It is necessary to understand significance (Why conserve it? Why is it significant or important?);

2. Then develop policy, (What’s the problem? What’s to be done?); and

3. Finally implement management processed of a place in accordance with the policy (How is it to be done?).


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This is stressed by both the Burra Charter and the Australian Natural Heritage Charter and is equally relevant to major and minor works. There has been a substantial amount of damage completed in cemeteries where these points were not first agreed upon and written down. The heritage significance of a cemetery or grave site should be identified at an early stage so that it can be property considered in the conservation policy. The National Trust strongly recommends that significant work on a place of heritage value must be preceded by a professionally prepared study or conservation policy. This applies to any work at all on sites that are highly significant or fragile. There are a number of supporting organisations and City-Wide studies which can assist in heritage management of cemeteries. The supporting bodies and key local strategic plans include:

NSW Heritage Office National Trust (NSW) Local historical society Heritage Advisor to Council City Wide Heritage Study Local Environment Plan (LEP) Regional Environmental Plan (REP)

The NSW Heritage Office administers a number of annual grant schemes which can be targeted towards cemetery management including: the development of conservation management plans; site specific heritage studies; conservation works; and interpretive signage. In terms of the practical application of conservation and heritage management of cemeteries, the major trigger for a cemetery manager through the NSW Heritage Act and endorsed through the National Trust and CCA (NSW) is:

“Any grave over fifty (50) years old must be assessed prior to any works commencing”

The assessment can be initially undertaken by Council’s cemetery manager however any detailed assessment should be completed by a professional within the heritage field. CCC Cemeteries In terms of the heritage significance of CCC cemeteries it is noted that four (4) of the nine (9) cemeteries are Heritage listed under Council’s LEP and protected by the Environmental Planning and Assessment Act, 1979. Additionally, all nine (9) cemeteries are considered to be of local significance while some have regional significance recorded. At present, CCC does not have significant heritage and conservation information on any of its cemeteries, whilst the base data it does have requires updating. To compound this, there are no conservation provisions within Council’s cemetery-based policies and procedures. Although a number of Council’s cemeteries have limited recognition of their heritage significance through the Heritage Study and LEP there are no on-ground items to register this significance. In 2005 Council received funding through the NSW Heritage Office for remediation and safety works at Branxton and Wollombi cemeteries. The NSW Heritage Office operates a number of grant schemes annually. Due to the significance of a number of the local cemeteries this source of funding should be pro-actively encouraged through additional grant submissions. Council reviewed and updated its Heritage Study as part of the preparation of the comprehensive re-write of the LEP. This heritage review was not a complete review and the cemeteries were not thoroughly re-assessed. It is Council’s intention that the heritage study continue to be updated and as such each cemetery should be reviewed in detail. Of particular heritage significance is Rothbury, Wollombi and Greta cemeteries which should have site specific conservation management plans.


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Recommendations: To assist in the heritage recognition and conservation management of CCC cemeteries it is recommended that:

3.1.1 Conservation management provisions are made within Council’s cemetery policies and procedures, namely that: “any grave over 50 years old be assessed prior to any works commencing”.

3.1.2 Site specific heritage assessments and conservation management plans be prepared for each of Council’s cemeteries as part of the updating of Council’s Heritage Study.

3.1.3 Council signify the heritage significance of specific sites through interpretive signage.

3.1.4 Council actively seek funding through the NSW Heritage Office for funding towards the identified heritage assessments, interpretive signage and conservation works.


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3.2. Burial Space Limitations and Options

General One of the major issues impacting on the management and operation of cemeteries throughout Australia is the potential shortage of burial space. The issue has been examined in detail by the NSW Department of Lands which produced a discussion paper on the subject in 2005: “Burial Space in the Sydney Greater Metropolitan Area” Although the paper relates to the Sydney Metropolitan Area the underlying issues are being or will be experienced by all urban areas including Cessnock LGA. The identified options available to address the potential shortage of burial space include: Encouraging more intensive use of

cemeteries through: More intensive use of family graves Renewable tenure for new gravesites

and community mausolea Revocation of unused burial rights

under certain conditions in all cemeteries;

Consideration of cemeteries in land use planning;

Identifying public land that could be used for cemeteries and crematoria;

Encouraging the adaptation of alternative interment practices;

Through the NSW Department of Lands discussion paper “Burial Space in the Sydney Metropolitan Area” each of the options has been explored and the potential implications and future actions have been identified: Family Graves While most gravesites in NSW are dug to accommodate one or two burials, there is effectively no limit to the number of burials which can take place in any one grave provided the coffin’s upper surface is no less than 900 millimetres below the level of the soil surface. Once the limit is reached the site is ‘full’ and no more family members can be

buried with their deceased forebears in the same gravesite. Many gravesites in New South Wales already contain two or more members of the same family. In South Australia, Victoria and Western Australia additional space is provided in the family graves using the ‘lift and deepen’ method i.e. when required, the grave is excavated to its greatest depth, thereby allowing additional burials to take place in the upper levels of the grave. Handling of remains within a grave during the lift and deepen process is only allowed after a minimum time has past since the last burial, e.g. 5 to 15 years, to ensure sufficient decomposition of remains within the grave. Family graves have several potential advantages such as allowing members of a family to be buried together; decreasing the demand for new gravesites; and supporting enhanced maintenance of gravesites by families. Legislation could be introduced, applying to all gravesites from a specified date, which permits as an option:

I. successive generations of family to be buried in a family grave by using the lift and deepen method and/or

II. graves currently considered to be full to

be reopened for other family members who wish to be buried in the grave by using the lift and deepen method.

Renewable tenure of gravesites In NSW, there is a perception that burial rights are held indefinitely but numerous cemeteries have been closed and reused for other purposes. Some remains were removed and reburied in other cemeteries. More recently legislation has provided for cemeteries (or parts of cemeteries) at a number of locations including Camperdown, Gosford, Liverpool, Campbelltown, Parramatta, Wollongong, and Gladesville, to be closed and used for parks and other activities.


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The Conversion of Cemeteries Act 1974 allows local councils to recover cemetery lands for public parks subject to certain criteria. This Act has largely not been enacted by local government due to the difficulties in public perception of relocating remains, costs and the lack-to-date of a high enough public demand for open space at the potential expense of a cemetery. It should be further noted that where it has been enacted. The sites have generally had very limited burials and the majority of the surrounds were already existing open space. Renewable tenure allows the reuse of burial sites after a period of time has elapsed (e.g. 25, 50 or 99 years depending on the legislation or circumstances) unless the tenure is renewed. Graves are usually reused by the ‘lift and deepen’ method, which allows for additional burials to take place in the upper levels of the grave. There are a number of ways in which renewable tenure could work. One possibility is the introduction of renewable tenure for new burials, for example from 25 to 50 years. At the end of the tenure period, the holder (usually a family member) would be contacted and have the option to renew the tenure again. This would mean that those people in the community who never want their remains disturbed could be confident that this would be the case, perhaps allocating funds to be held in trust for this purpose. If the tenure was not renewed, the ‘right of burial’ would revert to the cemetery authority for resale and reuse. Although the benefits of renewable tenure introduced for new burial sites would take some time to be realised, there would be a clear understanding at the time of burial that the gravesite is not held in perpetuity and if permanent occupancy is required, tenure must be renewed at specific intervals. Existing graves would not be affected.

In South Australia the maximum term for a gravesite is 99 years but is 50 years for the main metropolitan cemeteries because of a shortage of existing space and high ongoing maintenance costs. A shorter term is being considered. Western Australia limits initial burial sites to 25 years. Renewable tenure is common in Europe, with tenure periods usually being 50 years or less. Legislation would need to be introduced to permit renewable tenure for all new gravesites at the discretion of individual cemetery trusts and cemetery managers. At this stage there are no plans for the State to consider renewable grave options and subsequent legislation and regulations.


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Unused burial rights Many burial sites will remain unused as the holders may have been buried or cremated elsewhere; or where the burial rights have devolved, the current owner may be unaware that they hold the burial right. Existing legislation allows the ‘life’ of certain Crown cemeteries in Sydney and Newcastle to be extended by perhaps 5-10 years if the managers revoke unused burial rights sold more that 60 years ago. Legislation could be introduced that extends the right to revoke unused burial sites, according to specific criteria, to all cemetery managers in the GMA. The conditions for revoking the burial could reflect the existing legislation eg the site was granted more that 60 years ago; and a requirement to contact the last known holder. At present this option is not available unless the holder of the unused burial right sells it back to Council. A number of Councils have explored this option with mixed results as the required research and consultation is extremely time consuming. A trigger associated with recording of information is considered the most viable. Eg. when a burial right is not used after a set period of time, say 25 years, the holder either has the option of renewing the used burial right or selling it back to Council. Land use planning Land suitable for urban development is in relatively short supply and because of the economic, environmental and social costs or urban expansion, the best use of existing and new urban land and infrastructure is required. Allocation of land to a cemetery may be difficult to justify in some locations, and the development of land for new cemeteries may in some circumstances not be able to compete with higher value activities. Greater provision of land for cemeteries could be achieved through a focus on provision of future cemetery needs in all strategic urban planning, including for major new land release strategies, and through advice that councils


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should consider the need to plan for cemeteries and crematoria when preparing local environmental plans. The land use planning process could also be used to secure land for future development of public cemeteries and crematoria through reservation in the same way provision is made in the planning of new urban areas for schools and other community infrastructure. This would require government commitment, however, to purchase the land when requested by the landowner, and this may be at the expense of other key government services such as health and education. The obvious opportunity for local government is to consider the provision of a new cemetery or expansion/ upgrading of an existing cemetery through either Council’s Section 94 Contribution Plan and/ or a negotiated Voluntary Planning Agreement (VPA). A number of Council’s already incorporate the capital development of their cemeteries within their s94 Contribution Plans and have included cemetery development and/ or land provision through VPA negotiations. Provision of additional public cemeteries Both State and Local Government also has the option of purchasing additional land or allocating existing government-owned land for burial purposes. This option is hampered by the high cost of land, and the lack of large areas of appropriate and undeveloped land. As indicated above, purchase of the land by the government may be at the expense of services in other key areas of government such as health, infrastructure and education. While the government has provided land for cemeteries in the past, with the introduction of private cemeteries and crematoria, it is not clear that the government should provide additional land or how such purchases would be funded by government. As previous noted, the clearest opportunity lies with linking cemetery expansion/ development with residential development through the rezoning process and the need for an appropriate form of s94 Contribution Plan to address community needs.

Encouraging the adoption of alternative interment practices It is expected that cremation will continue to become increasingly acceptable as a means for disposal of the dead. Some religious groups, however, are understood to not accept cremation. Green burial (also known as natural or woodland burial) is increasingly being practiced in England and parts of Europe and uses land in a less formal and obtrusive manner than conventional burial practice. Green burial involves the use of natural open space, limits the use of chemicals and encourages bio-degradable burial material instead of concrete and metals. Graves within green burial sites are usually marked by a newly planted tree or small boulders. Small plaques may be located near to the grave marker to commemorate the deceased. Prior to a site being assessed as suitable for green burial, a range of environmental and other community and heritage issues would need to be considered e.g. the potential impact on threatened species and endangered communities. Green burial could be used to rehabilitate currently degraded sites such as closed waste depots or land under power lines. Experience in England, however, shows that advocates of green burials prefer natural bush settings. Green or woodland burials using bio-degradable urns/ containers are not permitted in NSW at this stage however the concept of ‘garden’ burials has been operating for several decades. Garden burials are increasingly becoming popular and are considered one of the key expanding ash interment opportunities. In addition, the interment of ashes within traditional burial plots has become increasingly popular. The interment of ashes in a burial plot increases the number of burials in the plot and subsequently increases the longevity of the cemetery.


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CCC Cemeteries There is no shortage of burial spaces being experienced in Cessnock LGA. At present, only one (1) of Council’s cemeteries is limited to burials where there are existing reservations only: Cessnock. This cemetery has opportunities for expansion due to the land on the western side being available for cemetery expansion at a future date. In terms of interment options, Cessnock City Council provides a diverse range of options including:

1. Traditional monumental burials at all cemeteries

2. Modern lawn cemetery burials at Kurri Kurri Cemetery and Gordon Williams Memorial Lawn Cemetery (Aberdare)

3. Columbarium Walls at Kurri Kurri Cemetery and Gordon Williams Memorial Lawn Cemetery (Aberdare)

4. Garden interments at Kurri Kurri Cemetery and Gordon Williams Memorial Lawn Cemetery (Aberdare)

At present, Council does not provide the following interment options:

1. Monumental Lawn burials – although there are a number of individual monumental lawn burials scattered throughout the general cemeteries

2. Crypts and Mausoleums – generally public cemeteries do not provide crypts and/ or mausoleums do to their cost and limited market.

3. Woodland/ Native burial options – it

should be noted that the adopted Masterplan for Aberdare Cemetery makes provision for a native burial site however it has not been developed to date.

An analysis of burial and interment statistics over the past ten (10) years has found that: The average number of burials per year

in the nine (9) general cemeteries is 55; The average number of burials per year

in the two (2) lawn cemeteries is 53; The average interment of ashes and

reservations per year in columbarium walls at Aberdare and Kurri Kurri cemeteries is approx. 82;

There are substantially more reservations in lawn cemeteries, gardens and columbarium walls compared to general cemetery reservations.

It is concluded that over the past ten (10) years there has been a substantial shift towards lawn burials and ash internments at Gordon Williams Memorial Lawn Cemetery (Aberdare) and Kurri Kurri Lawn Cemetery at the expense of a reduction in general cemetery burials. This trend is continuing to strengthen and is in line with industry trends.


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The following table outlines the capacity of each cemetery for further traditional burials and ash interments as well as the subsequent longevity of each cemetery.

INDIVIDUAL CEMETERY CAPACITIES Aberdare (Lawn & General)

Burials Reservations Vacant Total 1708 261 575 2544

Columbarium Walls Reservations Vacant Total

510 243 47 800

Garden Reservations Vacant Total 164 57 503 724

Note: the above figures only include the developed portion of the cemetery. The total capacity of the cemetery is estimated at 8,000 – 10,000 burial plots fully developed. Branxton

Burials Reservations Vacant Unknown Total 980 79 636 2 1697

Cessnock


Ellalong


Greta

Burials Reservations Vacant Unknown Total 1554 115 1032 2701

Kurri Kurri (Lawn & General)


Columbarium Walls Reservations Vacant Total

295 110 95 500

Garden Reservations Vacant Total 97 54 341 492

Note: the above figures only include the developed portion of the cemetery. Adjacent Crown land to the east and west have the capacity to substantially expand the size and capacity of the cemetery (to well over 6,000 burial plots and ash interment locations.


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Millfield


Rothbury


Wollombi


Note: The above tables show the burial, reservation and vacant plot figures as at November, 2007. At ALL of the above cemeteries there is the potential for burials, columbarium walls and gardens to take place for 20 years plus with the exception of Cessnock Cemetery. Following ongoing requests for a lawn cemetery at Greta and a columbarium wall at Millfield Cemetery Council considered a report (DSCS Report No. 91/2007) on the matters and resolved that:

1. “Council funds the purchase and installation of a 100 niche columbarium wall at Millfield General Cemetery from the Cemetery Reserve; and

2. The installation of lawn cemeteries in outlying cemeteries be reviewed in line with the development of a new Cemeteries Management Plan.”


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In line with this resolution, consideration of a range of interment options at all cemeteries has been undertaken including both columbarium walls and lawn cemeteries. Columbarium Walls Council presently has five (5) granite columbarium walls at Kurri Kurri Lawn Cemetery and a further eight (8) in the Gordon Williams Memorial Lawn Cemetery (Aberdare). Each wall has one-hundred (100) niches for the placement of ashes. The estimated cost to purchase and install a single granite wall with one-hundred (100) niches is approximately $16,000. Smaller columbarium walls can be acquired and installed with a sixty (60) niche granite wall estimated at $12,000. There are alternate options such as brick and/ or masonry walls which would reduce the capital cost however they do not provide the normal quality of cemetery service provided by Council and generally have higher maintenance costs and are more susceptible to vandalism. Once installed there are very limited maintenance costs associated with columbarium walls due to their robust nature. An additional advantage to columbarium walls is that they are often installed within a garden setting which can also be utilised for ash interments. Installed on their own, columbarium walls are often stark. Due to their initial capital cost, columbarium walls are generally only installed at cemeteries with an existing or high forecast ash interment/ burial rate. The average interment of ashes and reservations per year in columbarium walls at Aberdare and Kurri Kurri cemeteries is approximately 82, with this take-up rate continuing to increase each year. As such, an additional columbarium wall at both the Gordon Williams Memorial Lawn Cemetery (Aberdare) and Kurri Kurri Lawn Cemetery is established every two and a half years. Council has already resolved to install a columbarium wall in Millfield General Cemetery and it should be noted that based on the historic burial rates it is anticipated that the reservation and ash interment rate will be very slow. There is an expected population increase in Millfield and surrounds over the following 20 years however this is

not expected to impact on the take-up rate at the columbarium wall for an extended period. Due to the limited burial rates at all of Council’s general cemeteries with the exception of both Aberdare Cemetery and Kurri Kurri Cemetery there appears to be limited need to provide additional columbarium walls at any other cemeteries based on burial rates. However, should Council determine the need to provide a broader range of interment options at its cemeteries, recognising the expected initial limited take-up rate, it would be recommended that consideration be made to installing columbarium walls at Greta and Branxton due to their geographic location and expected future population increase. Lawn Cemeteries At present, lawn cemeteries are provided at Aberdare Cemetery and Kurri Kurri Cemetery. Approximately 50% of all burials are undertaken within the two (2) lawn burials with the other 50% of burials within the nine (9) general cemeteries. In addition, 55% of all burial reservations are within the two (2) lawn cemeteries. This trend has continued to increase over the past ten (10) years. Council has requested that consideration of additional lawn cemeteries be undertaken. The majority of cemeteries have the capacity for a lawn cemetery in particular Greta, Branxton and Millfield. Council has advised that based on the expansion of the William Gordon Memorial Lawn Cemetery (Aberdare) in 2006, the cost to establish a small lawn cemetery (say, 60 placements) would cost an estimated $35,000. Key components of the lawn cemetery would be similar to the existing cemeteries and include two (2) concrete beams, automatic irrigation system, sub-soil drainage, high quality turf, furniture and a fully landscaped and edged garden for the placement of ashes. Detailed site specific planning would be required prior to construction and the capital cost may be well in excess of $35,000 as other cemetery infrastructure may be required to be upgraded as part of the scope of works (eg access, fencing…).


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Council has advised that based on current practices to maintain a small section of lawn cemetery is in the vicinity of $4,000 per annum. Taking into consideration the need to complete a site specific analysis and design, the maintenance costs may be closer to $10,000 per annum which is indicative of the general maintenance costs of Kurri Kurri Lawn Cemetery. It should be noted that it is considered that Council provides a very high level of service at its lawn cemeteries compared to other LGA’s. Due to the limited burial rates at all of Council’s general cemeteries with the exception of both Aberdare Cemetery and Kurri Kurri Cemetery there appears to be limited need to provide additional modern lawn cemeteries at any other cemeteries based on burial rates and the ongoing relative high maintenance costs. An alternative option to provide a further range of burial interment options is to make provision at a number of its cemeteries for monumental lawn cemeteries. A monumental lawn cemetery differs from a modern lawn cemetery in that it provides a concrete beam whereby a headstone is installed on the beam within prescribed parameters. The grassed area is turfed after a burial however the ongoing maintenance of the grassed area is undertaken as part of the routine maintenance service.

The capital cost generally entails the installation of a concrete beam and potentially a garden border. As such the capital cost and level of ongoing service is substantially less than that of a modern lawn cemetery. As previously noted, there are currently individual examples of monumental lawn plots scattered throughout each of Council’s general cemeteries. Monumental lawn cemeteries are provided by a number of surrounding LGA’s including Lake Macquarie, Wyong and Port Stephens. The capital cost for a concrete beam and bordering garden is approximately $10,000 with minimal additional maintenance costs. As such, the additional benefit is a substantially lower fee compared to the purchase of a plot at a modern lawn cemetery. A monumental lawn cemetery is considered a good alternative to a modern lawn cemetery particularly where there is low-medium burial rates and relative geographic isolation. It is recommended that Council consider the inclusion of monumental lawn cemeteries rather than modern lawn cemeteries at locations where there is an expected long-term population expansion – Branxton, Greta and Millfield. In addition, through the design of the bordering garden with a monumental lawn cemetery provision can be made for ash interments and can either negate or complement the need for a columbarium wall.


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Recommendations: Cessnock City Council has the existing capacity within its nine cemeteries to manage the expected number of burials and ash interments for the following 20+ years. To assist in maximising the longevity of CCC cemeteries as well as providing an increased range of both burial and ash interment opportunities it is recommended that Council:

3.2.1 Recognise, promote and establish Aberdare and Kurri Kurri as city-wide locations capable of managing a wide range of interment options

. 3.2.2 Establish a native (woodlands) garden at Aberdare Cemetery in

line with the adopted Masteplan. 3.2.3 Permit the interment of ashes in existing burial plots. The ashes

will be interred under or adjacent to the headstone/ beam. 3.2.4 Over a period of time, establish monumental lawn cemeteries at

Greta, Branxton and Millfield incorporating gardens for ash interments.

3.2.5 Incorporate within the Right of Burials an option for Council to

purchase back any unused burial plots after a specified period (25 years). In addition, the Right of Burial can only be sold back/ transferred to CCC.

3.2.6 In specific locations convert unused religious burial sections to non-

denominational sections. 3.2.7 Masterplans be developed for Kurri Kurri, Greta, Branxton and

Millfield cemeteries whilst the adopted Masterplan for Aberdare Cemetery be reviewed.


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3.3 Demographics Analysis and Population Growth There are two (2) fundamental demographic tools which have an impact on the future population growth and distribution within Cessnock LGA: 1. Australian Bureau of Statistics 2006 Census Data 2. Lower Hunter Regional Strategy

1. Australian Bureau of Statistics 2006 Census Data In June, 2007 the initial data from the 2006 Census was released. The census data provides assistance in determining trends in the demographic characteristics and trends for an area. Although there is considerable data relating to the 2006 census the following tables highlight the key trends for Cessnock LGA.

Key statistics 2006

Num % NSW %

Males 22,861 49.5 49.3

Females 23,347 50.5 50.7

Total population 46,208 100.0 100.0

Australian citizens 42,291 91.5 85.8

Indigenous population 1,602 3.5 2.1

Age structure 2006

Num % NSW %

Infants 0 to 4 years 3,032 6.6 6.4

Children 5 to 17 years 9,032 19.5 17.5

Adults 18 to 64 years 27,864 60.3 62.2

Mature adults 65 to 84 years 5,558 12.0 12.1

Senior citizens 85 years and over 723 1.6 1.7


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Proficiency in English (overseas born) 2006

Num % NSW %

Speaks English only 2,333 80.1 40.3

Speaks English well or very well 405 13.9 46.2

Not Fluent in English 73 2.5 12.5

Families 2006

Num % NSW %

Couple without child(ren) 4,554 36.0 36.0

Couple with child(ren) 5,452 43.1 46.2

One parent family 2,458 19.4 16.1

Birthplace 2006

Num % NSW %

Australia 40,578 87.8 69.0

Overseas born 2,913 6.3 23.8

Mainly English speaking countries 1,822 3.9 6.9

Non-English speaking backgrounds 1,091 2.4 16.8

Religion 2006

Num % NSW %

Christian Total 34,102 73.8 67.7

Non Christian Total 582 1.3 8.0

No Religion 6,709 14.5 14.3

Household income (gross weekly) (a) 2006

Num % NSW %

Less than $350 3,012 18.1 14.9

$350 to $999 5,549 33.3 27.7

$1,000 and over 6,242 37.5 46.2

Housing tenure (a) 2006

Num % NSW %

Owned 6,568 39.4 34.8

Purchasing 5,729 34.4 31.9

Renting 3,722 22.3 29.5

Dwelling structure (a) 2006

Num % NSW %

Separate house 15,660 94.0 71.4

Semi-detached 323 1.9 9.7

Flat, apartment 523 3.1 17.7


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The figures clearly indicate an aging population with a substantial increase in persons over the age of 55 and a significant decrease in the proportion of person aged 0-14 years. In addition, the census data indicated that the occupation rate of a household had decreased from 2.84 in 2001 to 2.64 in 2006.

2. Lower Hunter Regional Strategy – NSW Department of Planning The Lower Hunter Regional Strategy applies to the five local government areas of Port Stephens, Newcastle, Lake Macquarie, Maitland and Cessnock. The strategy aims to ensure that adequate land is available and appropriately located to sustainably accommodate the projected housing, employment and environmental needs of the region’s population over the next 25 years. It presents a broad land use planning framework which identifies urban centres and lands for future residential and employment growth, to ensure that future population growth is supported by essential human services and associated infrastructure. The Strategy is based on forecasts that there will be a 25% increase in the region’s population over the next 25 years, along with 66,000 new jobs. The following table indicates the expected dwelling capacity for each of the Lower Hunter LGA’s: Centres &

Corridors Urban Infill

Total Infill New Release

Total Dwellings

Cessnock 500 1,500 2,000 19,700 21,700 Maitland 2,000 3,000 5,000 21,500 26,500 Port Stephens 3,300 2,000 5,300 7,200 12,500 Newcastle 12,200 2,500 14,700 5,800 20,500 Lake Macquarie

14,000 7,000 21,000 15,000 36,000

Total 32,000 16,000 48,000 69,200 117,200

It has been forecast that there will be a need to increase dwellings within the Cessnock LGA by 21,700. To facilitate this increase a number of proposed urban areas have been identified through the LHRS and Council’s adopted City Wide Settlement Strategy. The major areas of development have been identified (and many are currently going through the planning process) at: Bellbird North Bellbird East Sanctuary Villages (Paxton/ Millfield) Greta Sawyers Gully/ Weston Branxton (Huntley) Nulkaba Cessnock North Cliftleigh Kitchener


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Comment: With both an aging and growing population, the cumulative impact will see a long term increase in demand on Council’s current cemeteries. It is anticipated that there is capacity at all of Council’s cemeteries to meet this demand over the next twenty (20) years. The major increased demand is expected where the planned population increases will occur particularly in the townships of Cessnock (and surrounds), Kurri Kurri (and surrounds) Millfield, Branxton and Greta impacting on the existing cemeteries at these localities. Long-term consideration of a cemetery at Kitchener needs to be undertaken noting the lack of a cemetery within close proximity and the expected substantial population increase in the township (and surrounds) over the next 20-30 years. Provision has been made through section 94 of the Environmental Planning & Assessment Act (EP&A Act) for local government to levy fees on a development as a means of providing adequate infrastructure for the expected population through the development as well as the cumulative impact on the existing development. Council can access s94 contributions through City-wide s94 contribution plans, site specific s94 contribution plans, voluntary planning agreements (VPA’s) and a flat fee (s94a). Through any of these s94 plans Council can levy fees for the enhancement and/or expansion of an existing cemetery as well as make provision for the development of a new cemetery. There are numerous examples of Council’s incorporating cemetery works within their range of s94 plans. It is proposed that as the City-wide s94 contributions are periodically reviewed that the inclusion of cemetery works are considered. In addition, where large development sites are proposed, particularly in line with the Lower Hunter Regional Strategy, that the inclusion of cemetery development and expansion is considered through VPA’s or site specific s94 contribution plans. Recommendations: To assist in increasing the longevity of CCC cemeteries as well as meeting the anticipated demographic changes to CCC it is recommended that Council: 3.3.1 Broaden the range of lawn burial and ash interment options

(through garden placements) to extend the range of services and increase the life of the cemeteries.

3.3.2 Consider the inclusion of cemetery development and expansion through Council’s s94 Contribution Plans and/ or Voluntary Planning Agreements (VPA’s).

3.3.3 Monitor the demographic changes over the following ten (10) years in the identified residential development areas (as per the LHRS) to re-assess the cemetery needs within those areas (in particular at Kitchener).


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3.4 Financial Management Financial Model Although there are a number of derivatives, local government essentially operates cemeteries through one of two financial models: Option 1: Annual Council budgeting Income and expenditure is managed through the annual budgeting process with all funds being directed through consolidated revenue. Capital expenditure, maintenance and operating funding and associated fees and charges are considered annually and in line with any existing prioritised asset management programs. The majority of Hunter Council’s financially manage their cemeteries in this way. Option 2: Business unit approach The financial management of cemeteries is undertaken with a ‘business unit’ approach whereby income and expenditure are directly attributed to the function. The annual budget is generally considered by Council as part of its annual budgeting process however the overarching goal is for the business unit to become cost neutral or operate at a profit. In terms of cemetery business units, all income is placed in an internally restricted asset (reserve) and funds are allocated annually out of the reserve to cover some or all of the management, operational and capital development costs. A number of Councils, which actively participate in the funeral industry, operate as business units including Shoalhaven and Wollongong Councils. At a local level, Cessnock City Council operates its modern lawn cemeteries as a designated business unit. The income from the operation of the Kurri Kurri and Aberdare Lawn Cemeteries (including columbarium walls and garden ash interments) are retained in a reserve and through Council’s annual budget process transfer funds from the reserve to cover the administration, maintenance and capital expenditure at its lawn cemeteries. This has shown to be highly successful with profits from the business unit being allocated towards the upgrading and expansion of both cemeteries over the past four (4) years whilst continuing to cover operating costs. As a minimum Council plans to allocate approximately $35,000 per annum (as a minimum) into its reserve. The use of similar business unit arrangements is not unique to local government with many business units operating in a similar fashion (including waste, aquatics, childcare, noxious weeds, performing arts facilities etc). It should be noted that Council also places all funds associated with reservations into an internally restricted reserve which it also draws on to pay for Council adopted capital improvements at its cemeteries. It should be noted that Council operates its general cemeteries in line with Councils annual budget and subsequently operates at an overall deficit.


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The following table identifies and summarises the overall financial position of the operation of CCC cemeteries: 2005/06

2006/07 2007/08

(budgeted) INCOME General Cemeteries Sales of Sites/Fees

$29,289 $28,000 $28,000

Gordon Williams Memorial Lawn Cemetery – lawn, garden, columbarium walls

$78,618 $90,000 $90,000

Kurri Kurri Lawn Cemetery –lawn, garden, columbarium walls

$49,625 $40,000 $40,000

TOTAL $157,532 $158,000 $158,000 EXPENDITURE – GENERAL CEMETERIES

Salaries & Leave Entitlements $13,261 $13,200 $19,000Superannuation $1,300 $1,700Workers Compensation Insurance

$1,165 $700 $1,100

General Cemeteries Maintenance & Working Expenses

$81,143 $62,300 $62,600

General Cemeteries Plaques/Urns

$1,983 $3,600 $3,600

Water Charges $3,162 $2,200 $3,500Reactive Maintenance $2,434 $3,100 $3,300Survey & Mapping $444 $2,000 $2,000SUB-TOTAL $103,592 $88,400 $96,800 EXPENDITURE – ABERDARE LAWN

Lawn Cemeteries Maintenance

$5,993 $17,900 $18,500

Lawn Cemetery Gravedigging $33,313 $35,000 $35,000Lawn Cemetery Plaques $24,811 $25,000 $25,000Transfer to internal reserve $16,284 $11,100 $10,500SUB-TOTAL $80,401 $89,000 $89,000 EXPENDITURE – KURRI KURRI LAWN

Lawn Cemeteries Maintenance

$13,736 $6,100 $8,000

Lawn Cemetery Gravedigging $18,430 $14,000 $15,000Lawn Cemetery Plaques $7,047 $6,500 $7,000Transfer to internal reserve $13,736 $6,100 $8,000SUB-TOTAL $46,398 $40,000 $40,000 NETT PROFIT/ LOSS OF GORDON WILLIAMS LAWN

($1,783) $1,000 $1,000

NETT PROFIT/ LOSS OF KURRI KURRI LAWN

$3,227 $0 $0

NETT PROFIT/ LOSS OF GENERAL CEMETERIES

($74,303) ($48,400) ($56,800)

OVERALL NETT LOSS OF CEMETERIES

($72,859) ($47,400) ($55,800)

(Source: Cessnock City Council 2007/08 budget)


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It should be noted that the profit/ loss figures incorporate the transfer of funds to the Cemetery Internally Restricted Asset (Reserve). Assuming that the transferred funds are all profits the actual overall profit/ loss for cemeteries could be better defined as follows: 2005/06

2006/07 2007/08

(budgeted) NETT PROFIT/ LOSS OF GORDON WILLIAMS LAWN

$14,501 $12,100 $11,500

NETT PROFIT/ LOSS OF KURRI KURRI LAWN

$16,963 $6,100 $8,000

NETT PROFIT/ LOSS OF GENERAL CEMETERIES

($74,303) ($48,400) ($56,800)

OVERALL NETT LOSS OF CEMETERIES

($42,839) ($30,200) ($37,300)

An analysis of the financial position of other LGA cemetery operations indicates that CCC’s nett loss is well below average. This below average nett loss is due to a number of inter-related matters including: High level of ash interments and lawn cemetery burials which have

an inbuilt higher level of profit Very low administration staff costs compared to other LGA’s. Low water usage

Of concern is the high cost of maintenance of the general cemeteries in comparison to other LGA’s. It is expected that this is partially due to the wide distribution of the cemeteries and the use of disability based external contractors.

The general financial position appear to be sound compared to other LGA’s however trends in local government management of cemeteries indicates a clear progression towards minimising the operational subsidy and where possible making cemetery operations cost neutral (at least). Through the establishment of business units either formally or informally, there is a distinct focus on operating the community assets more business-like with a core responsibility in reducing the historic subsidisation of the operation of cemeteries. As previously indicated, it is recommended that Council implement a broader range of ash interment options and monumental lawn burials including the provision of garden burials. As such any associated fees and charges should cover the cost of the required maintenance level increase. Any shift towards reducing operational subsidies should be supported through amendments to both operational and financial policies, procedures and activities.


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Fees & Charges In reviewing cemetery based fees and charges at LMCC, a comparison was undertaken with a number of Hunter and Central Coast Councils including: Newcastle City Council (NCC); Maitland City Council (MCC); Cessnock City Council (CCC), Port Stephens Council (PSC); Singleton Shire Council (SSC); Dungog Shire Council (DSC); and Wyong Shire Council (WSC). Table: Fees and charges comparisons with other LGA’s

CCC $

LMCC $

NCC $

MCC $

PSC $

SCC $

DSC $

WSC $

Plot - General Section

490.00 495.00 450.00 556.00 470.00 830.00 400.00 712.75

Plot –Modern / monument

lawn

1,800.00 495.00 495.00 1,225.00 1,200.00 1,212.75

Columbarium Walls

600.00 (inc plaque)

495.00 445.60 380.00 630.00 (inc plaque)

220.00 650.00 (inc plaque)

Garden Placements inc. plaque

600.00 895.00 685.00

Interment Fees

95.00 135.00 121.00 13.45 100.00 175.00 140.00

Reopening Fee

104.50 135.00 13.45 100.00 140.00 58.20

Contractor Licence Fee/

permit

95.00 99.00 50.00

Monumental Fees –

Headstone

110.00 60.00 48.00 101.30 80.00 100.00 50.00

Monumental Fees – Slab

69.00 55.10

Monumental Fees –

Kerbing

93.50 69.00 55.10

Monumental – Tomb or Monument

110.00 90.00 101.30

Note:

Whilst all efforts have been made to use accurate data, the table of comparison should be used as a guide as the fees and charges between Council’s vary in terms of scope and service levels.

Where the inclusions within a fee vary, a provisional amount in line with industry standard fees has been amended (eg grave digging a general plot is estimated at $500).

The figures are based on the 2007/08 adopted Council fees and charges. .


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It should also be noted that a comparison with private cemeteries within the Hunter was undertaken however the fee structures presented by both Lake Macquarie Memorial Park and Newcastle Memorial Park are broken into very specific items which make it difficult to make direct comparisons. By broadly assessing these fees and charges as well as advice from the CCA and NSW Department of Fair Trading, indicate that private cemetery fees and charges are generally two and a half times (or more) compared to local government and church cemetery fees and charges. This increased cost is reflective of the general higher level of service (both capital development and maintenance) and private cemeteries tend to target the higher cost interment options (eg modern lawn cemetery burials, garden ash interments…) Although the abovementioned comparison of fees and charges is a guide, a number of general conclusions can be made: CCC fee for a burial plot (general section)

is below average compared to other LGA’s. CCC fee for interment within a

columbarium wall is average compared to other LGA’s (taking into consideration the inclusion of a plaque).

CCC interment fee is in the lower range compared to other LGA’s (excluding MCC).

CCC garden placement fees are low compared to other LGA’s.

CCC has a contractor licencing fee/permit fee although the formal agreement with external agents is dated. This fee is generally included to cover the cost of liaising and corresponding with the external agent and assessing their application and capabilities.

LMCC monumental fee is higher than the average compared to other LGA’s. It should be noted that Council’s vary in terms of having a set fee for all monumental works through to diversifying the fee based on the type of monumental work.

It is proposed that CCC review its cemeteries fees and charges to reflect the services provided by Council, service standards by Council and the introduction of additional fees and charges for the expansion of monumental lawn burials. It is expected that the increase in fees will decrease the operating deficit and/or provide an opportunity for Council to increase its service standards. Recommendations: 3.4.1 In line with the introduction of a broader

range of ash interment options and monumental lawn burials as well as the establishment of a prioritised capital works and planned maintenance program, it is recommended that CCC perpetuate and refine the operation of cemeteries as a business unit.

3.4.2 To reflect the cost of managing and

operating its cemeteries it is recommend that Council re-assess its cemetery fees and charges on an annual basis with the following considerations from the 2008/09 financial year:

review the current fees for burial plots

(general section) at $490.00 review the current interment fee at

$95.00 Increase the columbarium wall fee from

$600.00 to say, $650.00 Depending on the timing of the capital

works, establish a monumental lawn burial fee


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3.5 Risk Management Council has a responsibility to ensure that all activities conducted within its cemeteries comply with the requirements of the OH&S Act 2000 and the OHS Regulation 2001 and associated legislation. With the exception of broad acre mowing, interment of ashes in columbarium walls and specific capital works, the majority of burial related activities are conducted by external agents. External agents include but are not limited to: funeral directors, monumental masons, grave diggers their employees and any second parties that carry out services for them. The activities that they undertake include but are not limited to: excavation & site restoration, landscaping, funeral services, equipment maintenance, construction and maintenance of structures and monuments, lifting & transport and the disposal of surplus materials. To date these identified works have been undertaken through a combination of different agreements, specifications and at times without any formal agreement between Council and the external agents. As with other areas of Councils operations, it is proposed that Council implement a specific agreement with external agents through the introduction of a permit and associated guidelines to operate within Council’s cemeteries. The agreement and permit is aimed at clarifying responsibilities and accountability. The guideline will need to set out Council’s requirements when those activities are carried out by external agents, their employees or subcontractors employed by them. An agent must subsequently be able to prove compliance to these requirements and will be issued with a permit to carry out works. Council should require all agents who wish to work within Council’s cemeteries to have a permit to work. The permit should be reissued annually on application by the external agent and subject to audit by Council. Many Council’s have introduced a range of permits and guidelines (or the like) for the operation of external agents in local government managed cemeteries. Within the Hunter all LGA’s have implemented agreements with external agents to undertake specific works. A draft set of guidelines has been prepared for CCC based on the respective recommendations of the CCA (NSW) as well as current guidelines operating at Maitland, Port Stephens and Dungog Council’s. The draft guidelines have been amended to reflect the specific needs of

CCC. Current agreements have common requirements including but not limited to: Public Liability Insurance Workers Compensation Insurance Motor Vehicle/ Plant Insurance Specifications to comply with relevant

industry and Australian Standards (eg Monumental & Headstones in Cemeteries (1994) AS4204)

Conservation requirements include Council not issuing a monument permit in respect of a burial site, which is over 50 years unless the proposed works conform to the requirements of the National Trust and the site has been inspected by a Council representative

Contained within Appendices C is a copy of a draft set of guidelines for the operation of an external agent in Council’s cemeteries. As a further means to ensure that Council is taking measures to minimise its exposure/ risk within cemeteries the following pro-active actions should be implemented: A clear support structure and measures to

address staff difficulties in dealing with grieving (and often sad and potentially angry) clients.

A documentation asset inspection process

for all cemeteries. The general state of the cemeteries should be monitored as well as recognised cemetery specific issues (eg leaning headstones, grave collapse, subsidence etc)

Continued preparation and implementation

of safe work statements and associated processes for activities undertaken by Council staff at cemeteries (eg: the placement of ashes in columbarium walls)

Keep up to date with trends and practices in

the cemetery and funeral industry through participation in local networking (Hunter Councils) with support from the peak industry bodies (CCA and ACCA)

Clarify Council’s responsibilities in relation

to cemetery management and maintenance through improved community information and accessibility


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Recommendations: To assist in minimising risk to Council and clarifying the roles and responsibilities in the operation and management of cemeteries, it is recommended that Council: 3.5.1 Develop and implement a permit and

associated guidelines with external contractors undertaking any works at Council’s cemeteries

3.5.2 Introduce safe work method statements (and associated processes) for all activities undertaken by Council staff within a cemetery

3.5.3 Undertake six (6) monthly inspections (and documentation) of all cemeteries incorporating a basic asset condition report and risk assessment

3.5.4 Implement a clear dispute and grievance process in line with other Council practices

3.5.5 Provide a clear support framework (eg Employee Assistance Program) and schedule periodic support and training for any Council staff directly handling grieving clients

3.5.6 Actively participate in peak industry activities through the ACCA and CCA (NSW)

3.5.7 Information share with other Councils in particular through Hunter Council’s

3.5.8 Improve the quantity and accessibility of information to the general public regarding cemetery policies, procedures and standards

3.5.9 Any identified groups regularly accessing Council’s cemeteries have a standard agreement with Council


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3.6 Public Information Development and Dissemination One of the key industry trends has been the increased provision of cemetery and crematoria information. This increase in information serves a number of roles including: Promotion of specific services and

facilities available. Increased awareness of policies,

procedures and guidelines. General awareness of the funeral

industry including cemeteries and crematoria.

Improved customer service and recognition of broadening of information dissemination opportunities through the internet and external agents.

From a local government perspective, often the first contact point relating to the provision of cemetery services and facilities is through a third party (generally, a Funeral Director). It is important that all third parties are fully aware of Council’s cemetery services and facilities and have a clear understanding of how to refer clients to Council. This referral is often completed through verbal instructions from the Funeral Director and/ or distribution of: a. Information leaflet b. Brochure c. Business card of Council representative d. Council forms and policy documents e. Web-site information General public awareness regarding cemetery management and operation can also be supplemented through current information dissemination sources such as public notices, information leaflets through the rates notices, stories in the local press and Mayoral columns. At present, CCC provides minimal public information regarding the management and operation of its cemeteries. As part of the general improved focus by local government on its cemetery management and operation as well as general asset management trends, a number of Council’s have progressively and substantially improved their development and distribution of public information relating to cemeteries. Good examples of web-site information provision include Wyong Shire Council and Orange City Council. Good

examples of hardcopy information sources include Shoalhaven Shire Council. It should be noted that the existing brochure used by Council is a good base for updating. Council has endeavoured to provide a cemetery search and mapping program through its homepage. The current information and maps are very difficult to understand particularly for people with limited understanding or knowledge of the local cemeteries. It is considered that Council should either upgrade the system to make it more user friendly or remove the system. Additionally there would be more merit in providing a downloadable copy of an updated brochure and new policies and procedures on the homepage. Any and all public information should aim to clarify the role and responsibility of Council in the planning, development and operation of cemetery facilities and services. Much of what is recommended is already being undertaken to a certain extent by Council. Recommendations: As a means to increase the amount and distribution of public information on cemetery planning, development and operation by CCC it is recommended that Council: 3.6.1 Continue to provide a hardcopy

brochure newsletter outlining the basic cemetery services and facilities provided by CCC and outline a range of means to liaise with Council (phone, fax, customer service, e-mail, web-page etc.)

3.6.2 The brochure be distributed directly from Council as well as identified external agents (ie funeral directors)

3.6.3 All cemetery policies, procedures and guidelines be clearly available through Council’s homepage

3.6.4 Business cards for Councils cemetery staff be available to local funeral directors for distribution to clients

3.6.5 Council periodically provide broad cemetery information through its normal community channels (local press, Mayoral column, public notices)

3.6.6 Council make the web based cemetery mapping and searching system more user friendly or remove it.


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3.7 Capital Development and Maintenance

An analysis of maintenance standards for Councils in the Hunter indicates a norm for broad acre mowing of a four (4) week rotation and a scheduled mow close to designated special days (eg Mothers Day, Fathers Day, Christmas Day). Site inspections and a review of existing contractor agreements indicate that the maintenance standards for CCC cemeteries is in line with this standard and the quality is considered above average compared with surrounding LGA’s. Council currently fully maintains both lawn cemeteries (including co-ordinating the excavations), maintains the various gardens and memorials and undertakes all of the broad-acre mowing. Council has historically out-sourced the maintenance of the cemeteries within the general cemeteries (whipper snipping…) to two (2) local disability employment service providers. Council has previous indicated a preference to continue with this arrangement however alternative options could be considered including Council staff taking over the works or opening the maintenance works out to an open tender. Council historically receives few complaints or work requests associated with the maintenance of the cemeteries. In terms of landscaping, the majority of cemeteries have minimal gardens or park furniture. This can be partially attributed to Council not providing garden ash interments and/or columbarium walls at the majority of its cemeteries. As previously noted, both Aberdare Cemetery and Kurri Kurri Cemetery are the two (2) principle cemeteries of the LGA and are expected to continue to do so for at least the next twenty (20) years. As such, both cemeteries have been developed to provide a diverse range of interment options and subsequently due to the nature of their standing and facilities are both aesthetically pleasing. Both of these cemeteries present very well and the improved standard of care compared to the other cemeteries can be directly attributed to the development of the lawn cemeteries and associated ash interment options. Through the further introduction of monumental and/ or modern lawn cemeteries and garden ash interments it is expected that aesthetically the cemeteries will be improved

particularly around columbarium walls and entrances to the cemeteries. The previous Cemeteries Management Plan identified and outlined a number of proposed capital works. Since 2000 Council has progressively implemented a range of capital works including: Fencing competed at Branxton,

Cessnock, Millfield and Wollombi Cemeteries.

Signage replacement/ installation completed at all cemeteries.

Establishment of childrens memorial gardens at Cessnock and Kurri Kurri Cemeteries

Seating installed at Millfield General Cemetery, Gordon Williams Memorial Lawn Cemetery (Aberdare) and Kurri Kurri Lawn Cemetery.

Expansion and upgrading of Kurri Kurri Lawn Cemetery including fencing, park furniture, garden replacements and installations.

Expansion and upgrading of Gordon Williams Memorial Lawn Cemetery (Aberdare) including doubling the size of the lawn cemetery, roadway extensions, garden placements and irrigation system.

A site analysis of all cemeteries was undertaken with the following observations:

The general standard of development, maintenance and aesthetics was considered sound. In particular, Aberdare and Kurri Kurri Cemeteries were of a high standard.

All major cemeteries have water access generally through access to town water.

Entrance and internal roadways are in adequate condition however specific improvements at Branxton and Rothbury should be planned for.

Sectional signage within each cemetery is good in quality and style.

Taking into consideration the isolation of a number of Council’s cemeteries, the directional signage is extremely poor or non-existent. Particular attention should be made for the cemeteries at Millfield and Rothbury.


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Park furniture is minimal however this can be seen as a result of a lack of/ limited ash interment locations. Good examples of the incorporation of appropriate park furniture includes Kurri Kurri Cemetery.

The landscaping along Allandale Road fronting Cessnock Cemetery is poor and requires substantial upgrading/ replacement.

Fencing at the cemeteries ranges from very good (Aberdare) to very poor (Ellalong).

It is important to ensure that cemeteries are maintained both while they are operational and after they are full and when there is no longer an income stream from new burials. There is currently no requirement relating to perpetual maintenance of cemeteries although there is a public perception that cemetery grounds will be maintained forever. Specific identified works to be incorporated into a prioritised capital works program includes: Establishment of a native/ bushland ash

interment garden at Aberdare Cemetery in line with the adopted Masterplan.

Replanting of tree corridor along main entry road into Aberdare Cemetery.

Replacement of fencing at Ellalong Cemetery.

Vehicular improvement access to Rothbury and Branxton cemeteries.

Replacing/ upgrading the landscaping buffer fronting Cessnock Cemetery.

Consideration of establishment of monumental lawn cemeteries with associated ash interment gardens at Greta, Branxton and Millfield.

Continued expansion of columbarium walls at Kurri Kurri Cemetery and Gordon Williams Memorial Lawn Cemetery (Aberdare).

Recommendations: To assist in providing a clear and consistent approach towards the development and maintenance of Council’s cemeteries, it is recommended that Council: 3.7.1 Develop a prioritised capital works and

planned maintenance program in line with other Council community infrastructure plans.

3.7.2 Where possible, external funding

opportunities should be maximised (eg grant funding through the NSW Heritage Office).

3.7.3 Review the ongoing maintenance within the general cemeteries through either negotiating a longer term agreement with the current contractors or consider either Council staff taking over the maintenance works or going out to open tender.


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3.8 Cessnock Cemetery Resourcing

As previously noted the administration costs for cemetery operations is low compared to other LGA’s. At present, the overall responsibility for the management and planning of the cemeteries is through the Recreation & Community Services Manager whilst the actual cemetery operations is administered through the administration section of the Strategic & Community Services Department. Council’s customer services section additionally provides basic information. The majority of the administration of its cemeteries is undertaken through a designated half position within the administration section of Strategic & Community Services. This position is split between the administration of cemeteries (on behalf of the Recreation & Community Services Manager) and general Departmental administration duties. The cemetery administration role primarily undertakes customer service with clients as well as recording and allocating burial sites. Limited time is able to be spent on: planning; policy and procedure review and development; promotion; proactively liaising with external agents… The current administrative resourcing is extremely fragmented and as such information dissemination and accountability is divided creating some inconsistencies. It should be noted that in terms of the actual on ground works there appears to be a consistent high level of service provided. This Strategy has identified a number of areas that need ongoing attention by Council staff to improve the effectiveness of the planning, development, management and operation of CCC cemeteries. These areas of increased focus will subsequently require additional resourcing from Council. In considering the allocation of additional resources it is imperative that the resources match the necessary technical and industry knowledge. In essence, some of the operational improvements require specific cemetery management knowledge whilst other improvements require more generic skills such as customer service. It is considered that through a combination of streamlining the work flow and improving the knowledge of external agencies and Council’s customer service staff, the expansion of the current part-time cemetery role to a full-time role will be able to meet these

needs. The cemetery officer will need to work within the cemetery planning section (Recreation & Community Services) and will be required to undertake the vast majority of activities requiring cemetery technical industry skills and knowledge whilst the customer service section will ably support the position through information provision and dissemination. The key areas of responsibility for the cemetery officers position would include: Review and establishment of policies

and procedures that meet the needs of the City’s cemeteries.

Technical knowledge of the broad funeral industry with particular focus on the operational techniques, guidelines and standards associated with the management and operation of public cemeteries.

Establishing and maintaining agreements and permits with external agencies.

Refining a clear and effective rapport with external agencies including the referral and recording processes.

Prepare and disseminate appropriate information to the public through a number of sourcing including Council’s homepage, brochure and media releases.

Annually review the cemeteries fees and charges and provide input into the preparation of the annual and four (4) year budget and management plan.

Prepare and administer a prioritised capital works and planned maintenance program.

Although there are expected substantial benefits to the provision of a full-time cemetery officer, there is an expected increased cost to Council of approximately, $25,000 per annum. As previously noted, it is expected that the increase in costs could be offset through proposed increases in fees and charges and an increase in interments at Cessnock cemeteries through the broadening of lawn cemetery and ash interment options to other general cemeteries. The level of resourcing will need to be monitored over the following years and be reflective of the prescribed service levels and community expectation.


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Recommendations: To improve the efficiency and effectiveness in the operation of CCC cemeteries it is recommended that Council: 3.8.1 Increase the cemetery administration

staffing levels from half a position to a full-time role (cemetery officer) working within the Recreation & Community Services section of Council. The cemetery officer will be required to have appropriate skills and knowledge in the planning, management and operation of public cemeteries.

3.8.2 Appropriate ongoing training and support through CCA be provided to all staff working within a cemetery setting.

3.8.3 The increase scope of the cemetery officer’s position be funded through the proposed increase in revenue through broadening the lawn burial and ash interment options.

3.8.4 Councils Customer Service Centre be periodically briefed in the management and operation of public cemeteries.

3.8.5 The level of resourcing be monitored and reviewed against ongoing workloads and community expectations.


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3.9 Policy and Procedures Council has a range of fragmented policies and procedures. As a means of complying with the future direction for the provision of cemetery facilities and services within CCC a draft policy and a draft procedure has been developed. In developing the draft policies and procedures the following factors have been considered: Existing cemetery policies and procedures Compliance with all current legislations and

prescribed Australian Standards Consistent with the direction prescribed within

this strategy Are workable documents that can achieve

practical results Endorsed direction of the CCA (NSW) through

their recommended guidelines Consistent with industry trends and direction Policies and procedures currently in operation by other LGA’s have been reviewed. It was considered that the policies and procedures of Port Stephens, Maitland and Dungog were of a particularly high quality and had been established based on the CCA guidelines. The draft CCC policy and procedure has been prepared in line with the key features of these policies and specific strategic planning and operational features of Cessnock. Copies of the draft CCC policy and procedure for the management, planning and operation of public cemeteries are contained within the appendices. Key features of the draft policy and procedure include: Council shall maintain a register of all burials,

exhumation and burial rights in respect of each cemetery in order to comply with legislation and to provide information for historical research references for the public. The legislative requirements include the Public Health (Disposal of Bodies) Regulation 2002, clause 35A of the Public Health Regulation 1991, State Records Act 1998, and Local Government Act, 1993.

Where a grave site is over 50 years old, it is subject to the Heritage Act 1977. Council will not issue a monument permit in respect of a burial site, which is over 50 years unless the proposed works have been considered by Council and conform to the requirements of the National Trust.

Items and human remains may only be interred at any burial site with the written permission of

Council who will issue a burial right. Burial rights may only be transferred through Council and subsequently Council may re-sell the burial right.

The burial right is for a period of twenty-five (25) years. Should the burial plot not be used in during this period, the burial right will either need to be renewed or relinquished to Council.

Council will retain a standard agreement for all external parties wishing to undertake specific works in Councils cemeteries. An external party may not undertake work of any type in a cemetery unless that person and those engaged by that person holds a valid work permit for that specific activity.

The grantee/ permit applicant of a monument right is responsible for maintaining and repairing monuments. All monuments and monumental work must comply with Monumental & Headstones in Cemeteries (1994) AS4204. If Council is required to undertake any work relating to a monument so as to ensure public or employee safety it may recover these costs from the grantee. A monument permit will only be granted in respect of a burial site with the consent of the grantee of the burial right.

An exhumation may only take place when an order by a Coroner or a Court permitting is issued or an applicant has obtained, prior to commencing exhumation approval for exhumation by NSW Department of Health in accordance with the provision of Public Health (Disposal of Bodies) Regulation, 2002 and approval from Council.

One of the key objectives of the draft policy and procedure is to clarify Council’s roles and responsibilities. Combined with the draft agreement with external stakeholders (funeral directors, grave diggers) the documents are aimed at guiding Council in the planning, development and operation of all of the cemeteries under its care, control and management.

Recommendations:

3.9.1 As a means to clarify Council’s roles

and responsibilities in the planning, development and operation of its cemeteries (in line with this strategy) a formal over-arching cemetery policy and procedure be established.


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4. FINDINGS AND CONCLUSIONS

CCC is responsible for the care, control and management of nine (9) cemeteries throughout the LGA. These cemeteries form part of an integral component of the operation of the funeral industry within the area. The industry and subsequently Council’s provision and management of public cemeteries is influenced by a range of trends and issues including interment trends, increased litigation, compliance to a number of legislations and regulations, population growth rates and demographics as well as increasing community expectations. Taking into consideration the evolution of the cemetery and funeral industry and local government’s important role in the provision of services and facilities, the need to establish a long-term direction for the care, control and management of public cemeteries is recognised, as well as the ongoing expectations of procedural and operational improvements. In line with the purpose of the strategy, a number of conclusions have been drawn and subsequent recommendations made, to provide a clear and consistent direction for the planning, management and operation of cemeteries throughout the Cessnock LGA. These operational improvements and strategic directions have been developed taking into consideration a number of key drivers including: public expectations; legislative and regulatory requirements; industry standards and trends; consistency with other LGA’s; retainment of the key characteristics of the cemeteries within the LGA; and future demands on the provision of cemeteries.

Purpose 1: Examine current service provisions and management procedures, identify opportunities for operational improvement.

A comprehensive review of the operational and management procedures was undertaken, with the following key findings and subsequent recommended course of action: The Strategy concluded that the existing

cemeteries were able to cater for the burial and broadened ash interments for the next twenty plus (20+) years whilst recognising that traditional burials will be limited to reservations only at Cessnock

At present, Council provides a relatively broad range number of interment options compared to other LGA’s including: monumental burials; modern lawn burials; and ash interments in columbarium walls and gardens. Through broadening the ash interment options and lawn cemetery burials, via monumental lawn cemeteries and garden interments at Branxton, Greta and Millfield it is expected that the longevity of the cemeteries will be increased and a broader range of services will be available to the specific communities. Other initiatives to increase the longevity and functionality of the cemeteries include: converting unused religious burial sections to non-denominational sections; making provision through the conditions of a Right of Burial that any unused plots will either need to be re-acquired after 25 years or sold back to Council; and at any stage an unused Right of Burial can be transferred back to Council.


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There is limited heritage recognition at any of the cemeteries and a lack of a conservation plan and/ or strategy. Through the updating of Council’s City-wide heritage study and conservation strategy it is expected that the level of significance of each cemetery will be fully documented. The initial statement of significance can subsequently be used as the basis for future site specific conservation plans as part of a comprehensive masterplan and associated Plan of Management. A pro-active approach in seeking funding through the NSW Heritage Office and National Trust may reduce the direct cost to Council and fast-track the works.

At present, Council does not have an overall risk management strategy for cemeteries and there is a lack of clarity regarding Council’s and any external agency’s roles and responsibilities. As a means of minimising the risk to Council it is proposed that Council: establish a permit and associated guidelines for any external agent working within Council’s cemeteries; introduce safe work method statements for all works undertaken by Council staff in the cemeteries; keep up to date with trends and practices in the funeral industry through participation in peak bodies and networking with other LGA’s; prepare and distribute cemetery information to the general public and external agencies; and carry out designated inspections and assessments of each cemetery.

Council provides very limited information to the public regarding the planning, management and operation of its cemeteries. To clarify its roles and responsibilities a range of information documents will need to be establish and distributed through Council, media sources and external agencies.

Compared to other LGA’s the operational deficit for cemeteries was relatively low recognising the benefits of the high level of ash interments and lawn cemetery burials. As a means of increasing the service levels whilst aiming to reduce the operational deficit of cemeteries a number of strategies are to be implemented including: perpetuating and refining the business unit approach to cemetery management and operation; increase the fees and charges to reflect the level of service, comparisons with other LGA’s and establishment of a broader range of interment options.

There is very limited pro-active planning for the cemeteries as a community asset. To assist in addressing this, it is proposed that Council develop prioritised capital works and planned maintenance programs in line with the strategic direction of cemetery management and operation as well as specific planning frameworks and reference studies (eg masterplans and heritage assessments).

To facilitate the refinement, establishment, implementation and review of the proposed operational procedures, it is essential for Council to allocate the appropriate level of resources to undertake these tasks in an effective and efficient manner. Over the short-term it is recommended that Council increase its administrative staffing levels (cemetery officer), from half a position to a full-time role, in recognition of the increased scope of works and required specialist cemetery skills and knowledge. It is expected that the increase in funding through the broadening of ash interment options and monumental lawn cemeteries as well as proposed increases in fees and charges will cover the increased costs. The position is expected to drive the operational changes in support of Council’s broader community planning unit.


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Purpose 2: Consider options for the future provision of cemetery services and prepare a strategy to implement these improvements.

The overarching strategy for the planning of cemeteries for Cessnock incorporates the inter-related actions of the: Broadening ash interment options and

monumental lawn cemeteries over a period of time to provide a greater range of service to extend the life of each cemetery. Priority should be directed towards Greta, Branxton and Millfield cemeteries.

Continuation of the focus of the planning, management and operation of cemeteries towards a ‘business-unit’ model through amendments to the financial management and general operation of the cemeteries.

Pro-active preparation and distribution of information to the general public and external agencies.

Preparation of site specific conservation management plans in line with Councils Heritage Study and the requirements of the NSW Heritage Office and National Trust.

Consider the need for further provision of cemeteries and/ or development of cemeteries through Council’s s94 contribution plans and Voluntary Planning Agreements.

A draft policy, procedures and external agreement have been developed for CCC in line with the recommendations and findings of this strategy and have been included within the appendices. As a means to implement the proposed actions of this strategy an action plan outlining the required action, responsible officer and proposed timeframes has been developed. The action plan concentrates on the initial implementation of the strategy over the first twelve (12) months and should be reviewed and updated as part of the preparation and consideration of Councils annual management plan.


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Reference Number

Action

Responsible Officer/s

Timing Comment

HERITAGE & CONSERVATION

3.1.2 Incorporate heritage assessments of cemeteries within City-wide heritage study

Heritage Advisor

Completed by late 2008

The Heritage Study was reviewed as part of the comprehensive revision of the LEP however ongoing reviewing is required due to the limited nature of the initial review

3.1.2

Site specific conservation and management plans are undertaken in line with Heritage Study and conservation guidelines

Manager Recreation & Community Services / Heritage Advisor

To be staged as part of CCC Heritage Study

3.1.1

Graves over 50 years old be assessed prior to any works commencing:

Incorporate into standard policies and procedures

External agencies are made aware of provision

Cemetery Officer

July, 2008

The initial assessment or referral is to be considered by the Cemetery Officer however the assessment may require specialist knowledge

3.1.4

Council seek funding through the NSW Heritage Office and National Trust for the planning of or completion of heritage and conservation works

Cemetery Officer/ Manager

April, 2008 – Dependent on timing of grants

Heritage grants are generally advertised twice annually in April and September.

3.1.3 Council signify the heritage significance of specific sites through interpretive signage

Cemetery Officer/ Heritage Advisor

Commencing through 2008/09 budget

All cemetery sites

Reference Number

Action


Timing Comment

INTERMENT OPTIONS &

CONDITIONS

3.2.1 3.2.2 3.3.1

Consider the staged establishment of monumental lawn cemeteries at Greta, Branxton and Millfield including gardens for ash interments

Cemetery Officer

Detailed planning from July 1st, 2008

It is recommended that a concept plan be developed for all sites

3.2.5

Review and amend the conditions of the Right of Burial to incorporate:

The specified timeframe (recommending 25 years) for the use of the burial right. At the conclusion of the timeframe the burial right can be renewed or sold back to Council

A Right of Burial can only be purchased back from Council and not on-sold to a third party

Cemetery Officer

March 1st, 2008

Amended Right of Burial conditions to be implemented in conjunction with introduction of new policies and procedures

2.3.6

Identify the specific parameters for the establishment of non-denominational burial sections and the conversion of unused religious sections to non-denominational

Cemetery Officer

December, 2008


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Reference Number

Action


Timing Comment

FORWARD PLANNING

3.3.3

Monitor the demographic changes to the Cessnock LGA through the 2011 and 2016 Census data as well as the implementation and review of the Lower Hunter Regional Strategy and CWSS

Manager Recreation & Community

Services

Ongoing

The population forecasts and development rates of Bellbird North, Cliftleigh, Huntley and Kitchener require ongoing monitoring due to their significance in the LHRS

3.4.1

Perpetuate the management of cemeteries as a business unit through the operation of an internally restricted asset (reserve)

Manager Recreation & Community

Services

Ongoing

3.4.2

Review the fees and charges for cemeteries on an annual basis to reflect the actual works and maintenance in perpetuity

Cemetery Officer/ Co-

ordinator

Annually Revised fees and charges to be implemented through Council’s 2008/09 budget

3.3.2

Consider the inclusion of cemetery development and expansion through Council’s s94 Contribution Plans and Voluntary Planning Agreements

Manager Recreation & Community Services / Developer

Contributions Officer

Ongoing

3.4.1 3.7.1 3.7.3

Establish a prioritised capital works and planned maintenance program for cemeteries with an annual review process

Cemetery Officer/ Co-ordinator,

Annually

Initial capital expenditure and ongoing maintenance should be targeted towards broadening ash interment options and improved signage.

3.7.2

Reduce the cost to Council and/ or increased scope of works for cemetery projects by targeting external funding opportunities


March, 2008

Actively seek external funding opportunities through grant funds, joint ventures with community organisations and sponsorships.

Reference Number

Action


Timing Comment

RISK MANAGEMENT

3.5.1

Develop and implement a permit and associated guidelines with external agencies undertaking any works at Councils cemeteries

Cemetery Officer/ R&CSM

March, 2008

External Agents identified and targeted with information including draft guidelines and agreements.

3.5.2

Continue to review and establish safe work method statements for all activities undertaken by Council staff at cemeteries

Recreation Operations Manager

Ongoing

The safe work method statements should be prepared in line with Councils standard processes.

3.5.3 Undertake six (6) monthly inspections of all cemeteries

Cemetery Officer

Commencing, December, 2007

The inspections should be recorded and incorporated into the periodic and annual review of planned works and maintenance.

3.5.4

In line with the draft Cemetery Procedure all disputes should initially be referred to the manager

Co-ordinator, November, 2007

A copy of the draft Cemetery Policy is included within the appendices

3.5.5 3.8.2

Provide ongoing support to cemetery administration staff handling difficult and emotional situations

Co-ordinator,

November, 2007

Periodic assistance to be provided to cemetery staff including access to appropriate employee assistance programs

3.5.6

Keep up to date on industry trends and issues through participation in peak bodies and networking forums

Co-ordinator, November, 2007

Retain formal and informal relationships with other LGA cemetery officers and CCA (NSW)


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Reference Number

Action


Timing Comment

PUBLIC INFORMATION & POLICY

DEVELOPMENT

3.9.1

A cemetery policy and procedure be established in line with the strategic and operational direction of this strategy

Manager Recreation & Community Services

January, 2008

A copy of a draft cemetery policy and procedure is prepared

3.6.1 3.6.2

Develop a hardcopy and electronic brochure/ newsletter outline the basis cemetery service and facilities and subsequently distribute directly from Council, home-page and external agencies


March, 2008

Important to provide a consistent and clear information addressing the basic needs/ queries and directing clients to further information or contact points

3.6.3 3.9.1

Place endorsed cemetery policies and procedures on Councils homepage


March, 2008

Consideration should be made to provide a home page linked e-mail to the Cemetery Officer

3.6.4

Create and distribute business cards for Councils Cemetery Officer through Councils community services unit and external agencies

Cemetery Officer

July, 2008

Distribution of business cards should coincide with establishment of dedicated Cemetery Officer position

3.6.5

Incorporate the periodic and milestone promotion of cemeteries management and operation through Councils communication strategy and media channels

Cemetery Officer/ Media Manager

November, 2007

Ongoing

3.8.1

Increase the cemetery administration resourcing through the establishment of a dedicated full-time cemetery officer

Recreation and Community Services Manager

July, 2008

The roles and responsibilities of the cemetery officer position should be in line with the recommended actions of this strategy.

3.8.2 3.8.4

Provide ongoing support to all staff associated with cemetery management and operation through appropriate training and information sharing


March, 2008

3.8.5

Fund (and review) the expansion of the Cemetery Officer position through fee and interment increases


July, 2008

The level of resourcing is reviewed in line with the preparation of the annual budget


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5. REFERENCES AND SUPPORTING ORGANISATIONS

5.1 References “Burial Space in the Sydney Greater Metropolitan Area” NSW Department of Lands, 2005 “Census Data 2001 and 2006” Australian Bureau of Statistics, 2007 “Lower Hunter Regional Strategy” NSW Department of Planning, 2006 “Management Plan Guidelines for South Australian Cemeteries” McDougall and Vines Consulting, 2005 “Cemeteries Guidelines for their Care and Conservation” Department of Planning, 1992 “Guidelines for Cemetery Conservation” National Trust of Australia (NSW), 2003 “Consumer Guide for Funerals” NSW Department of Fair Trading, 2006 “Criteria for Assessment of Significance and Reasons for Listing” National Trust of Australia (NSW) Cemeteries Committee, 1998 “Service in Cemeteries and Crematoria in NSW” Cemeteries & Crematoria Association of NSW “Heritage Management of NSW Cemeteries and Memorial Parks” Cemeteries & Crematoria Association of NSW “Guidelines for Safe Working Practices in Cemeteries & Crematoria in NSW” Cemeteries & Crematoria Association of NSW “Cemetery Ornamentation Guidelines” Cemeteries & Crematoria Association of NSW “Guidelines for Planning an Exhumation” Cemeteries & Crematoria Association of NSW “Guidelines for Burial or Cremation of Pathological Samples in NSW” Cemeteries & Crematoria Association of NSW “Grave Listing – The Wilderness or Rothbury Cemetery” Delaney, J.W. 1982 ”Grave Listing for the Greta Cemetery” Delaney, J.W. 1984 City of Cessnock Heritage Study – Volume 2 – Inventory of Heritage Items, Cessnock City Council Pike,P., Walker,M., and Associates 1994


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5.2 Supporting Organisations The following organisations have provided support to the development of this strategy through the provision of cemetery based policies, procedures, fees and charges, agreements and general advice regarding trends and operational matters: National Trust NSW Department of Lands NSW Department of Fair Trading NSW Heritage Office Lake Macquarie City Council Maitland City Council Newcastle City Council Port Stephens Council Dungog Shire Council Singleton Shire Council Wyong Shire Council Kempsey Shire Council Shoalhaven Shire Council Wollongong City Council

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