LOCAL GROWTH MANAGEMENT STRATEGIES, STRUCTURE PLANS AND MASTER PLANS UNDER THE SEQ REGIONAL PLAN

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1 SEMINAR - 28 August 2006 LOCAL GROWTH MANAGEMENT STRATEGIES, STRUCTURE PLANS AND MASTER PLANS UNDER THE SEQ REGIONAL PLAN The introduction of the South East Queensland (SEQ) Regional Plan resulted in another layer of planning for SEQ Queensland. To ensure that each SEQ local government s planning scheme is consistent with the SEQ Regional Plan, each local government is required to, among other things, prepare a Local Growth Management Strategy and submit it for approval by the Regional Planning Minister by 30 June At the moment most of the local governments in SEQ are in the process of preparing their Local Growth Management Strategies. However it is still unclear what this process will mean for landowners and what form the Local Growth Management Strategies will have. The SEQ Regional Plan and in some cases the Local Growth Management Strategies require structure planning and/or master planning to be carried out for some areas before development is able to be approved. Again the form and the process to prepare the structure plans and master plans are still not widely known. This seminar will discuss Local Growth Management Strategies, structure plans and master plans which are required under the SEQ Regional Plan from the State government s perspective, local government s perspective, landowners' perspective and from an infrastructure perspective. The speakers at this seminar are: 1. Meredith Sinclair, Office of Urban Management, who will discuss the state government s perspective; 2. Greg Vann, Buckley Vann, who will discuss the local government s and landowner s perspective; and 3. Kerry Doss, Brisbane City Council, who will discuss the infrastructure perspective QUEENSLAND ENVIRONMENTAL LAW ASSOCIATION / GPO Box 3225 Brisbane QLD 4001 Ph: / Fax: / info@qela.com.au /

2 LOCAL GROWTH MANAGEMENT STRATEGIES AND STRUCTURE PLANS A STATE PERSPECTIVE Introduction Meredith Sinclair, Senior Town Planner Office of Urban Management South East Queensland (SEQ) is Australia s fastest growing metropolitan region. In 2004, the Integrated Planning Act 1997 (IPA) was amended to introduce a statutory regional planning process for SEQ. The South East Queensland Regional Plan (SEQ Regional Plan) was released in June 2005 and sets out a framework to manage growth and development. The SEQ Regional Plan requires each local government in SEQ to submit a completed Local Growth Management Strategy (LGMS) for approval by the regional planning Minister by 30 June The SEQ Regional Plan also sets out that Structure Plans need to be prepared for all Major Development Areas. The LGMS and Structure Plans are tools which provide more detailed guidance for planning in each local government area and effectively operate as the intermediate step between the regional policies provided in the SEQ Regional Plan and the detailed measures required to implement these aspects of the SEQ Regional Plan at the local level. Local Growth Management Strategies The IPA defines a LGMS as a document (a) prepared by a local government; and (b) that the regional planning Minister is satisfied (i) demonstrates how the SEQ regional plan will be implemented at the local level; and (ii) has been subject to adequate public consultation The LGMS is a key mechanism for achieving the urban development outcomes in the SEQ Regional Plan. This paper has been prepared by the Office of Urban Management to disseminate information, which may assist in the interpretation and application of the IPA and the SEQ Regional Plan. The paper is prepared in good faith, based on information available at the time of print. No responsibility is taken for any actions or decisions that may result or arise from the use of the paper or its contents. The paper does not commit or purport to commit the Office of Urban Management. QELA Seminar Local Growth Management Strategies

3 The LGMS is intended to enable each local government to demonstrate how it proposes to achieve the dwellings targets and other key urban development policies set out in the SEQ Regional Plan, based on detailed local investigations. Among other things, the SEQ Regional Plan says that a LGMS will: investigate projected housing needs and the diversity and affordability of housing types required for future communities; demonstrate how dwellings targets and associated jobs and infrastructure will be accommodated, including opportunities for infill and redevelopment; set priorities for investigating and planning for higher densities, including identifying transit oriented communities; review land and infrastructure availability in Regional Activity Centres to ensure they perform their intended function; ensure measures are in place to prevent inappropriate out-of-centre development; identify available greenfield and redevelopment areas which require structure planning or master planning; and identify planning scheme amendments required to implement the LGMS. A LGMS is the vehicle through which each local government sets out its strategy for achieving the urban development aspects of the SEQ Regional Plan. A LGMS will provide more detailed guidance about the preferred nature and timing of development in the Urban Footprint and certain Investigation Areas identified in the SEQ Regional Plan. Also, through the LGMS process, local governments can identify those aspects of the planning scheme that require amendment to achieve the urban development aspects of the SEQ Regional Plan, and identify other nonplanning scheme measures that will facilitate the SEQ Regional Plan outcomes in the particular local government area. The Implementation Guideline No. 2: Local Growth Management Strategies sets out the required nature and format of, and process for preparing a LGMS, as well as the matters that must be addressed in a LGMS. The Guideline set out the minimum requirements and there is nothing to prevent a local government from exceeding these requirements by, for example, undertaking more comprehensive technical studies (e.g. detailed environmental studies) or more extensive community consultation. A LGMS will require approval by the regional planning Minister. Prior to approval, the regional planning Minister will need to be satisfied that the minimum requirements set out in the guidelines have been met. Structure Plans Principle 8.9 of the SEQ Regional Plan is for all major development areas to be subject to a thorough and collaborative planning process to establish the broad This paper has been prepared by the Office of Urban Management to disseminate information, which may assist in the interpretation and application of the IPA and the SEQ Regional Plan. The paper is prepared in good faith, based on information available at the time of print. No responsibility is taken for any actions or decisions that may result or arise from the use of the paper or its contents. The paper does not commit or purport to commit the Office of Urban Management. QELA Seminar Local Growth Management Strategies

4 structure, layout, appropriate land uses and service corridors required for future development and community needs. The policies for achieving this principle are: prepare and adopt structure plans for all Major Development Areas prior to development undertake detailed master planning for significant new urban development and redevelopment areas or precincts complete State Infrastructure Agreements in conjunction with a structure plan, where appropriate. Structure plan and major development area are defined in IPA, s 2.5A.20(5) as follows. structure plan means a document (a) prepared by a local government; (b) that the regional planning Minister is satisfied (i) (ii) is an integrated land use plan setting out the broad environmental, land use, infrastructure and development intent to guide detailed site planning for major development areas in the local government s area; and has been subject to adequate public consultation. major development area means an area that is a major greenfield area or a regionally significant redevelopment area identified (a) (b) (c) in a local growth management strategy; or in an IPA planning scheme; or by the regional planning Minister in a written notice to the local government. A structure plan is the next planning step down from the LGMS, providing more detail as to how the relatively high-level urban development strategies in the SEQ Regional Plan will be implemented at the local level. Draft Implementation Guideline No. 4: Structure Plans was released in April The guideline is currently being reviewed and finalised in light of submissions received. This paper has been prepared by the Office of Urban Management to disseminate information, which may assist in the interpretation and application of the IPA and the SEQ Regional Plan. The paper is prepared in good faith, based on information available at the time of print. No responsibility is taken for any actions or decisions that may result or arise from the use of the paper or its contents. The paper does not commit or purport to commit the Office of Urban Management. QELA Seminar Local Growth Management Strategies

5 Process Processes for preparing a LGMS and Structure Plans are similar to the process set out under the IPA for the preparation of planning schemes and amendments (such as State interest review, public notification). The Office of Urban Management (OUM) is looking at opportunities to streamline the processes through identification of State interests up front and targeted second State interest reviews. The OUM is also working closely with the Department of Local Government, Planning, Sport and Recreation to streamline any necessary amendments to planning schemes. Strategies to Assist The OUM is establishing a range of strategies to assist all Stakeholders in the preparation of LGMS and Structure Plans including the following: Identification of Regional and sub-regional contacts; State agencies advised that first State review is the only opportunity to identify issues and interests; Education /awareness of the LGMS and Structure Plans process and implications; OUM liaison officer assistance; Co-ordinating an upfront list of State agency interests; Website illustrating status and progress with links to relevant documentation Streamlining whole of Government review process. Summary LGMS and structure plans are mechanisms to implement the regional policies and principles of the SEQ Regional Plan at the local level; A Guideline has been released by OUM for the preparation of a LGMS and a Guideline is currently being finalised for the preparation of Structure Plans; Given the similarities in processes for LGMS, Structure Plans and planning schemes and amendments there are opportunities for streamlining; The OUM is establishing a range of strategies to assist in the preparation of LGMS and Structure Plans. References Integrated Planning Act 1997 South East Queensland Regional Plan SEQ Regional Plan Implementation Guideline No. 2: Local Growth Management Strategies SEQ Regional Plan Draft Implementation Guideline No. 4: Structure Plans This paper has been prepared by the Office of Urban Management to disseminate information, which may assist in the interpretation and application of the IPA and the SEQ Regional Plan. The paper is prepared in good faith, based on information available at the time of print. No responsibility is taken for any actions or decisions that may result or arise from the use of the paper or its contents. The paper does not commit or purport to commit the Office of Urban Management. QELA Seminar Local Growth Management Strategies

6 LGMS S, STRUCTURE PLANS AND MASTER PLANS THE INFRASTRUCTURE PERSPECTIVE Kerry Doss, Principal Program Officer Infrastructure Coordination and Financing, City Planning Branch, Brisbane City Council The context of infrastructure planning in SEQ He who every morning plans the transaction of the day and follows out that plan, carries a thread that will guide him through the maze of the most busy life. But where no plan is laid, where the disposal of time is surrendered merely to the chance of incidence, chaos will soon reign. Victor Hugo ( ) If Victor Hugo was still alive today he would no doubt endorse many of the approaches to planning being undertaken in South East Queensland (SEQ). I can bet he would have been excited about the infrastructure context most of all. Infrastructure plays a key role in the management of growth and this is manifestly so in the SEQ region. This crucial role is recognised though the Integrated Planning Act 1997 (IPA) and subordinate policy. At the purpose level of the Act. Section (1)(d) of IPA states that advancing the Act s purpose includes - supplying infrastructure in a coordinated, efficient and orderly way, including encouraging urban development in areas where adequate infrastructure exists or can be provided efficiently. This focus has been translated into the SEQ regional Plan with Section 2.5A.11, Key elements of the SEQ Regional Plan requiring that the regional planning Minister must be satisfied that the SEQ regional plan identifies the desired future spacial structure of the region including (i) A future regional land use pattern; and (ii) Provision for regional infrastructure to service the future regional land use pattern, to inform (A) Local governments when preparing priority infrastructure plans; and (B) The State, local governments and other entities about infrastructure plans and investments. The South East Queensland Infrastructure Plan and Program (SEQIPP) support the South East Queensland (SEQ) Regional Plan and guide the preferred QELA seminar Local Growth Management Strategies 1

7 pattern of development. The SEQIPP identifies the proposed investigations, as well as the planning, design and construction necessary over the next 20 years and covers investment in transport and freight, water, energy, information and communication technology and social and other community infrastructure. This focus on infrastructure confirms that in order to accommodate growth in the SEQ region all parties involved must make sure that land use and infrastructure planning are closely integrated and that the catalyst role that infrastructure plays in guiding and managing growth is recognised and harnessed as a policy lever. Infrastructure planning in LGMS s The cascading of the importance of infrastructure planning and rollout has continued through as a requirement for the preparation of Local Growth Management Strategies (LGMS s). The preparation of a LGMS will involve (at a minimum) the following interrelated strands of planning activity: Residential development strategy Employment and economic development strategy Infrastructure strategy broadly describes potential new infrastructure and upgrades required to efficiently support anticipated growth, how the local government will align a PIP to the LGMS to deliver trunk infrastructure and how it is intended to efficiently plan for non-pip infrastructure, including, but not limited to, community facilities and State government infrastructure Urban open space strategy describes the integrated open space network and hierarchy, distinguishing between PIP and non-pip deliverables, but particularly focusing on planning for nature conservation and landscape values beyond the scope of a PIP Sequencing strategy - broadly outlines the preferred sequence and timing of development and infrastructure From an infrastructure perspective land use must be aligned and planned for as part of an iterative process where land use scenarios and infrastructure strategies are matched and tested to arrive at an optimum outcome. At the broad level the LGMS must ensure that further detailed infrastructure planning is guided and informed, that land use planning decisions are integrated with, and not made in isolation of, infrastructure considerations and that Local infrastructure demands and capabilities and the SEQIPP should also inform development sequencing. In particular the current LGMS Guidelines state that with respect to infrastructure a LGMS should: identify the approach to planning for the different infrastructure elements and ensure alignment of plans for both PIP and non-pip infrastructure; broadly describe and map potential new infrastructure and upgrades that may be necessary to support growth areas and achieve an efficient and livable urban area with effective access connections; and QELA seminar Local Growth Management Strategies 2

8 Identify areas of potential State government infrastructure interest, regional infrastructure constraints and the likely type of infrastructure required. Given the high level of the LGMS one must ask, what can we plan for in an LGMS? It was originally suggested that a new Priority Infrastructure Plan should be in conjunction with LGMS. Anyone who has embarked on the PIP process will know that timeframes for an LGMS do not allow this and practically a new PIP will follow the completion of the LGMS. Most LGAs in SEQ already well advanced on pre-regional plan PIPs or equivalents and have undertaken a significant amount of infrastructure planning. Analysis should therefore focus on the gaps between previous population/growth and new SEQ targets. In areas such as Brisbane some parts of the local government area may not need to accept significant new growth in 2026 timeframe The analysis and strategies for infrastructure in a LGMS can only really carry out a high level analysis of infrastructure implications for both PIP and non-pip related Infrastructure Planning in a LGMS. Given that there is a clear relationship between growth and infrastructure capacity there is a need to identify capacities and shortfalls and current planning. A fanciful theory is that this may throw up the mythical infrastructure rich area which is ripe for development. In practice however it is often that where there is capacity for one system other systems lack capacity. The high level analysis of constraints and opportunities should include analysis of cost and other implications of growth forms using systems such as transport modelling, accessibility analysis, water and sewer master plans and known deficiencies. This may allow an analysis of cost/benefits of different servicing options, e.g. slight increase in cost for upsizing an item may allow significant extra growth capacity. Analysis may identify that in some cases capacity has been planned for but delivery times must be accelerated. A further challenge for some areas, especially Brisbane, is that infill development is far harder to plan for and to deliver than for greenfield areas. This is because of issues of fragmentation, old infrastructure, sometimes unknown capacities and locations and the need to upgrade current infrastructrue to meet new standards. In some cases a far higher standard of public realm, landscaping and construction will be required to make infill areas livable and the current provision of IPA may not be up to speed to assist with this delivery. Given the need to rollout infrastructure in an equitable and sustainable manner sequencing becomes very important and it may be that if local government is expected to provide the majority of up front funding that the number of development fronts must be limited. As part of the examination of non-pip related infrastructure it is incumbent upon the local government to look at the other services that it provides as well as those provided by private and other public sector agencies these may include schools QELA seminar Local Growth Management Strategies 3

9 state roads, rail/busways, conservation/landscape areas, community facilities, health care, emergency services, and regional/state component of locally provided infrastructure. To practically achieve this task it is incumbent upon the other players to have their standards and planning in place and to limit their input to areas where they have a clear mandate. A further aspect of the LGMS it that it may also identify matters to be included in SEQIPP or other Sate agency programs. This will no doubt result in the first major overhaul of SEQIPP and provides an excellent opportunity for achieving economies of scale, cooperation and maximising impacts of infrastructrue implementation programs. Infrastructure Planning in Structure Plans and Master Plans According to the draft Structure Planning Guidelines a structure plan/master plan is a plan that describes and maps an overall development concept for an area or precinct including: present and future land use, detailed urban design and landscaping, built form, infrastructure, and service provision Again infrastructure planning and sequencing play a key role and as for LGMS structure/master planning land use outcomes and infrastructure requirements should be an iterative assessment which achieves a balance of yields/benefits and costs. At this level the detail becomes far more important and requires detailed modelling and planning of growth and demand for infrastructure as well as identifying the infrastructure required to service this growth. The level of detail may vary depending on timeframes. For instance a large area to be developed over many years may only need detailed design and costings for the first five to ten years of growth and broader concept planning for other parts of the area. If an area is to develop immediately detailed planning is essential. This planning, costing and scheduling of works give all players certainty about what can be expected, potential costs and timeframes which is a far better outcome all round. Again non-pip infrastructure planning is essential and other sectors must be ready to contribute to this exercise and make commitments. If infrastructure is planned in a coordinated manner there are opportunities for lateral thinking real innovation such as integrated water cycle management, which is a must for SEQ. QELA seminar Local Growth Management Strategies 4

10 This work will ultimately result in a PIP/ICS and potentially state Infrastructure requirements. The PIP/ICS must: Identify cost of infrastructure and timing Identify potential subsidies Identify who will use infrastructure Apportion costs Determine level of charge (may involve subsidy) Following this the PIP must be rolled into works programs as well as identifying opportunities for partnerships where infrastructure works may be developer delivered State Infrastructure Agreements and Infrastructure Agreements State Infrastructure Agreements (SIA) may seek contributions towards state infrastructure from land owners and developers of major development areas who stand to benefit significantly from Government infrastructure investment. SIA s are to be: A binding agreement between the State Government and/or landowners, developers and local government regarding the provision or supply of infrastructure. negotiated on an area-by-area basis, Not required with all structure plans. Certain matter may fall below the level of SIA s but where there is to be an infrastructrue partnership, an infrastructure agreement, under IPA may be entered into. These agreements are between local government and landowners/developers regarding the supply of local infrastructure and may also be an additional requirement of a structure plan. While the actual agreements may be complicated the basic contents will include: The parties and their responsibilities Timing of delivery of one or more items of infrastructure costs and cost sharing timing of payment and repayments + repayment terms Unfortunately experience to date has shown that negotiating and finalising these agreements is a time consuming task which hints at the need for templates to be developed at State level. Tracking and maintaining these agreements is also a substantial task. QELA seminar Local Growth Management Strategies 5

11 Conclusions The imperative to actively consider land use and ifnrastructure in a coordinated manner is not rocket science. It is good sound planning but the highlighting of these requirements at all levels is a sound reminder of the power of infrastructrue provision as a policy lever. Infrastructure is both a major catalyst and constraint to growth and as such solid infrastructure planning and implementation is key to LGMS and Structure plan formulation. I word of caution however is that infrastructure planning is half the battle, making the planning happen is challenging given the substantial budgets at stake and the competing demands for funding. As part of planning for infrastructure we must be prepared for change and look to innovate. Infrastructure planning requires buy-in from all levels of government, industry and community. As a last but important point we must also look at the cost of infrastructure and keep an eye on affordability. I will close with another quote from Publilius: Publilius Syrus (~100 BC), Maxims It is a bad plan that admits of no modification Clearly he must have been thinking of planning in SEQ and the need to make sure we monitor our plans and take corrective action where needed. References Integrated Planning Act 1997 Office of Urban Management (2006) South East Queensland Regional Plan Implementation Guideline No. 2 Local Growth management Strategies, The State of Queensland. Office of Urban Management (2006) South East Queensland Regional Plan Implementation Draft Guideline No. 4 Structure Plans, The State of Queensland. QELA seminar Local Growth Management Strategies 6

12 THE SEQ REGIONAL PLAN AND ITS OFFSPRING: THE LOCAL GOVERNMENT AND DEVELOPER PERSPECTIVE Greg Vann Director Buckley Vann Town Planning Consultants

13 OVERVIEW Lots to do - when and where does it all fit together. Local Government processes. Developer involvement. Some observations. Some photos! PAGE 1 QELA LGSM Seminar

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15 LOTS TO DO... LGMS. Structure Plan/s. Master Plans. Planning Scheme - new/amended. Priority Infrastructure Plans. Etc. PAGE 3 QELA LGSM Seminar

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17 The big choice: LOTS TO DO (cont ) together/conjointly: some benefits; resource/practicality issues; separately/consequentially: some benefits; a long process; everyone (LG, OUM, developers) still working this through. PAGE 5 QELA LGSM Seminar

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19 LOCAL GOVERNMENT PROCESSES LGMS: guidelines gives the statutory process; like a planning scheme process; in practice, a range of approaches being used; timeframes mean getting on with it; big commitment of resources; Structure Plan: draft guidelines issued but likely to change; different Councils taking different approaches; PAGE 7 QELA LGSM Seminar

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21 LOCAL GOVERNMENT PROCESSES Master Plan: really a structure plan only smaller area; not a statutory process; Planning Scheme amendments: PIPs: leave till later; or do at the same time as LGMS/SP; depends on where a LG is in its planning cycle and nature of existing scheme; different stages of progress in each LG; need to be lined up with LGMS/SPs. PAGE 9 QELA LGSM Seminar

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23 Developer Involvement Keen to get involved - the main game. Getting their own ideas together. Feeding these into some LG process. Looking for an agreed role. Funding assistance, particularly in major development areas. PAGE 11 QELA LGSM Seminar

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25 SOME OBSERVATIONS Role in development assessment: level of detail in LGMS; layers and potential overlap; still being thought through; new names for old concepts; planning scheme should remain the key. Role for LGMS is LGA specific: some could be relatively simple; some will be complicated; OUM or LG focus. PAGE 13 QELA LGSM Seminar

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27 SOME OBSERVATIONS (cont ) Resourcing: a lot required; professional shortages; a big challenge. State Agency involvement in LGMS: 18 LGMS s all at once hard for agencies; LG needs more than the company line ; seek input focussed on key issues. PAGE 15 QELA LGSM Seminar

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29 SOME OBSERVATIONS (cont ) The rest of the LGA: LGMS/SPs are about urban development; some urban areas will experience little change; implications for balance/rural/green areas; tying this all together is a challenge. OUM role: stay proactive and receptive; avoid a repeat of the IPA scheme drafting debacle. PAGE 17 QELA LGSM Seminar

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31 SOME OBSERVATIONS (cont ) Consultation: difficulties with the timeframes; uneven across LGs (from a lot, to not much); potential for confusion. Developer s role: involvement does add value; nee to coordinate their efforts where multiple landowners particularly for the major greenfield/infill areas; opportunities to get involved are uneven. PAGE 19 QELA LGSM Seminar

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33 SOME OBSERVATIONS (cont ) Standards and extras: goal posts have shifted quickly; extras are now standards: water sensitive urban design; traditional neighbourhood design; subtropical design; sustainable water cycle management; PT investment, walking and cycling; higher densities; transit oriented development. PAGE 21 QELA LGSM Seminar

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35 AND SO... We live in exciting times. A real chance to make a lasting difference to our medium and long term sustainability and QOL. Get involved! PAGE 23 QELA LGSM Seminar

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