Most people who sunbathe topless don't bother or disturb other people anyway. Its not the same if people are having sex on the beach in front of everyone else. The former doesn't equate to the latter and that's why local councils which beaches are topless or not are best to deal with these matters. And that's why I prefer Australia- the state government doesn't micromanage. They know which level of government is best to deal in matters, and to also allow a sense of privacy for all of its people.