Seven Mile Beach in Ballina Shire - like many other sandy beaches - being able to drive on beaches has enabled recreation, fishing, surfing and exploration of remote beach areas.

However growing popularity of this activities has attracted a lot of attention. Ballina Shire Council has reported a dramatic rise in beach driving. The number of 4WD permits issued rose from 2,690 in 2022 to 4,941 in 2023 – a 107% increase in one-day permits alone. This sharp surge brought with it growing complaints from other beach users such as walkers, dog owners, and horse riders, who reported conflicts and safety concerns.

More critically, the environmental toll has become increasingly evident. Seven Mile Beach is home to nesting sea turtles, migratory shorebirds, and intertidal species like pipis, crabs, and worms. Vehicle traffic threatens these species through crushing, noise disturbance, and habitat destruction. Tyre ruts can trap turtle hatchlings, while driving near dunes accelerates erosion and spreads invasive weeds that can out compete native vegetation.

Ballina Council recognised that the cumulative impacts of recreational driving on the beach could no longer be managed through minor policy adjustments or voluntary compliance alone. Effective management required a strategic, long-term policy and a long term phase out of beach driving.

Following these concerns from both the community and council staff, Ballina Shire Council developed a policy to strategic and phased approach to managing 4WD access on Seven Mile Beach, with the dual goals of protecting the natural environment and ensuring public safety.

Specifically, the policy aims to:

• provide a structured permit system for 4WD beach access
• promote safe and respectful coexistence of 4WD users with other beachgoers.
• allow special access in limited circumstances (e.g., for people with disabilities or approved filming)
• minimise environmental degradation to dunes, vegetation, and beach habitats.

Important aspects of the policy has been to reduce the types of permits available from mid-2024 and then phase out beach access altogether by 2028. Specifically, now:

• only 6-month and 12-month permits are issued. Short-term permits (1 to 30 days) have been discontinued to reduce casual use
• permits are vehicle-specific, non-transferable, and must be purchased through an app of a local kiosk
• access is limited to a designated stretch between Lake Ainsworth and the northern shire boundary
• vehicles must stay below the high tide line and at least 10 m from vegetated dunes
• boat trailers are allowed only when launching within the permitted area.

The beach use rules for the drivers is that they must:

• limit speed; 0 km/h generally, and 15 km/h within 50 metres of pedestrians.
• limit their vehicles to at least 15m from other beach users
• not drive on dunes to tow recreational items.

This policy is supported by 24/ surveillance cameras and enforcement by council rangers, and state enforcement officers.

Ballina Council held a six-week public exhibition of the draft policy in 2023. A total of 268 community submissions were received and considered. Responses were mixed but highlighted several consistent themes:

• Support from environmental groups and concerned residents who welcomed stronger protections for native species and reduced vehicle conflict.
• Frustration from regular 4WD users and fishers who felt their lifestyle and recreational traditions were being unfairly targeted.
• Calls for more education rather than enforcement, especially from those who believed that better signage and awareness could reduce harm without banning access.

Despite these differing views, there was broad acknowledgment that some form of policy change was necessary due to the evident strain on the beach’s ecosystem and the rising frequency of negative user interactions.

This case study was prepared by NCCARF.

Please cite as: NCCARF, 2025: Driving change; getting 4WDs off the beaches in Ballina. Case study for CoastAdapt, National Climate Change Adaptation Research Facility, Griffith University, Gold Coast.