6 SETTLEMENT HIERARCHY

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1 6 SETTLEMENT HIERARCHY The previous comparison of projected dwelling demand and Category A land supply (see Section 5) demonstrates that the LGA generally has sufficient zoned land, in overall terms, to meet demand for settlement growth in the next ten (10) years. Comparison by catchment and land use zone, however, highlights that projected dwelling demand cannot be met by the available land supply in some locations. The CWSS is not simply a process whereby Council creates additional zoned land to meet projected demand. Dwelling demand analysis has highlighted the dispersed nature of settlement growth, with significant development pressures for dwellings in the rural areas. When this analysis is evaluated against the form of a traditional settlement hierarchy, the comparison identifies that settlement growth is disproportionate as shown in Table 23. The projected dwelling demand extends this unsustainable pattern. Table 23: Comparison between traditional settlement hierarchy and dwelling approvals across the LGA Traditional Settlement Hierarchy Related zones Dwelling approvals Projected dwelling demand 2011 Land supply Category A Town 2(a) A (c) (DCP Area) Village 2(b) Village Enclave Rural-residential: 1(c), 1(c2) Dispersed 1(a) Rural A households (excluding 1(v) Rural (Vineyards) Zone) Total dwelling approvals The CWSS seeks to address the competing interests that Council must consider when determining the appropriate land use (or density) for settlement opportunities. The need to redirect projected dwelling demand (and its relationship with land supply) into a more sustainable settlement pattern is only achievable by addressing the competing interests of demand for rural-residential and rural settlement growth versus urban growth. The redirection of projected dwelling demand into a more sustainable form also requires identification of land suitable for urban development in a more compact form as an ESD objective within the CWSS. To achieve this objective, development pressures for ruralresidential development and incompatible land uses on the periphery of existing settled areas need to be resisted. City Wide Settlement Strategy 54

2 Therefore, as a result of this investigative process, the CWSS has determined the following principles for future settlement growth: Principle 1: SETTLEMENT HIERARCHY The need to establish a settlement hierarchy requires Council to resist the development of relatively unconstrained land for lower residential densities, including rural-residential development, within and on the periphery of the residential core. The need to support a settlement hierarchy dominated by residential development requires Council to recognise that rural-residential and rural settlement growth opportunities should be provided as a limited alternative to urban growth, not instead of. Principle 2: CLUSTER PLANNING Constraints analysis has highlighted the need to maximise development opportunities in areas closer to existing settlements. Constrained land that is inappropriately zoned needs to be reconsidered and rezoned if required. The finite nature of relatively unconstrained land in the LGA for settlement growth does not afford Council the luxury of responding to projected demand by rezoning additional land for growth in all instances. Projected dwelling demand that cannot be met by supply in existing zoned land (eg. land zoned 2(b) Village) needs to be redirected through analysis of greater opportunities in other zones. 6.1 ESTABLISHMENT OF A SETTLEMENT HIERARCHY The difficulty in establishing a consistent hierarchical structure over the LGA lies in the diverse nature and size of the geographical area. While it is acknowledged that settlement growth in the 2(a) A zone should continue to dominate within the LGA, the relationship between projected dwelling demand and land supply within each catchment needs to be examined to see what direction each catchment needs to take to strengthen its settlement growth opportunities. Land supply for any particular zone can be concentrated in one or two catchments, with little or no available zoned land in other catchment areas. The establishment of an appropriate settlement hierarchy (having regard to its limitations as outlined in Section 4) is to consider projected demand and supply at the catchment level, to City Wide Settlement Strategy 55

3 determine in which direction each catchment needs to be supported for future settlement growth. It is also recognised that settlement growth in some catchments has a relationship with higher order centres in adjoining LGAs, which must be acknowledged and considered in the identification of investigation areas for future settlement growth. 6.2 PLANNING APPROACHES TO CLUSTER PLANNING Various Councils have adopted a basic ring concept, in response to demand for ruralresidential development, which establishes an outer limit from settled areas within which rural-residential development can be considered. A 2km radius from primary schools and a 5km radius from high schools has emerged as an industry standard. However, the basic ring concept has its limitations, as outlined by DUAP in Figure 9. Area identified in a ring around an existing town or village. Normally up to 5km. Concentrates development close to services. Expectations that all land can be developed for rural residential. Can result in loss of urban redevelopment opportunities. Can create rural sprawl. Figure 9: Ring Concept Diagram. (DUAP, 1995, p.33) The finite nature of relatively unconstrained land in the LGA restricts the application of the basic ring concept. The adoption of a 5km radius from high schools as an outer limit for rural-residential development does not provide sufficient opportunity to identify the residential core of the LGA, nor does it prevent the proliferation of rural-residential development at the periphery of the existing residential areas. For the Cessnock LGA, a distinction needs to be City Wide Settlement Strategy 56

4 drawn between the need to obtain the highest development potential of land within a suitable radius of the settled areas, and areas where lower densities may be considered. It is recommended that the establishment of a sustainable pattern of settlement growth is based on a hierarchy supported by a donut ring concept of growth opportunities as indicated in Figures 11 and 12. The spatial relationship between the growth radii and the existing settlements is illustrated in the catchment figures. Where existing land use zones are inconsistent with the dwelling densities nominated in each hierarchical layer, constraints analysis has been utilised to determine whether opportunity exists to increase development potential within these zones. In such instances, the CWSS recommends rezoning of land to accord with the principle of redirecting future settlement growth within the settlement hierarchy. Opportunity remains for development below those densities specified within each hierarchical layer dependent upon existing zoning provisions and an assessment of carrying capacity Settlement Hierarchy Layer 1: residential core PRINCIPLE Relatively unconstrained land to be developed for its highest residential use (based on carrying capacity ). densities: Density range: lots/ha (gross) for fully serviced development. Radial locations: Indicative lot size: 750m 2. 2km from all schools in the 2(a) A zone. Rather than adopt a radius as an outer limit for development, planning analysis for the CWSS has considered the radial approach to delineate opportunities for urban growth. Within this radius, the CWSS seeks to encourage residential development to its maximum carrying capacity on relatively unconstrained land. LAYER 1 Core 2km from school in 2(a) Zone LAYER 5 Reservation 2-5km from high school in 2(a) Zone Figure 10: Settlement growth opportunities in the residential core of the LGA. (N.B.: Where the radii overlap, the appropriate density will be determined by Council based on specific development/performance standards to be prepared at the detailed planning stage.) City Wide Settlement Strategy 57

5 6.2.2 Settlement Hierarchy Layer 2: residential fringe PRINCIPLE Land to be developed for village residential use (based on carrying capacity ). densities: Range from 4.0 lots/ha (gross) 7.5 lots/ha for fully serviced development. Indicative lot sizes: 1000m 2 (fully serviced); 2000m 2 (unserviced). Radial locations: 1km from all schools in the 2(b) Village zone. Core land for village growth needs to be preserved, particularly if reticulated sewer systems are introduced. Rather than adopt a standard 2km radius from primary schools in the village zone, which overextends the growth potential of the village zones, it is recommended that a 1km radius be extended around primary schools located in the 2(b) Village zone for this layer as shown in Figure 11, with lower densities considered within the outer ring structure. LAYER 2 Fringe 1km from school in 2(b) Village Zone LAYER 2 & 3 Low Density / Rural- 1-2km from school in 2(b) Village Zone Figure 11: Settlement growth opportunities in the residential fringe of the LGA. (N.B.: Where the radii overlap, the appropriate density will be determined by Council based on specific development/performance standards to be prepared at the detailed planning stage.) Settlement Hierarchy Layer 2: low density residential PRINCIPLE Land to be developed for fully serviced lifestyle lots and limited unserviced ruralresidential lots (based on carrying capacity ). densities: Maximum 5 lots/ha for fully serviced lifestyle lots. Radial locations: Indicative lot size: 2000m m 2. 1km 2km from all schools in the 2(b) Village zone. Land in this hierarchical layer complements urban and village growth. Land suitable for fully serviced residential development in this layer in the settlement hierarchy is nominated as the outer donut ring within a radius of 1km 2km from schools in the 2(b) Village zone. Development densities considered in these rings would be larger fully serviced residential lots and unserviced rural-residential lots, if applicable, as shown in Figure 11. This outer layer initiates a proactive approach to limit the ultimate potential for village growth, having regard to the Growth Management Principles adopted in the CWSS. City Wide Settlement Strategy 58

6 6.2.4 Settlement Hierarchy Layer 3: rural-residential PRINCIPLE densities: Radial locations: Land to be developed for rural-residential lots (based on carrying capacity. ) Ruralresidential development will be required to be unserviced (no reticulated water or sewer). Minimum size 1ha lots. Variety of lot sizes to be introduced as specific exercise of carrying capacity for each development. 1km 2km from all schools in the 2(b) Village zone. Can be considered within all other hierarchical layers, only where analysis of carrying capacity establishes that higher densities cannot be realised. N.B.: The cost of infrastructure provision will not be a determinant of carrying capacity within the higher (serviced) hierarchical layers. Rural-residential development will fall within this layer of the settlement hierarchy. Unserviced rural-residential development can be considered in any of the other hierarchical layers, as a reflection of carrying capacity and existing land use zones. Rural-residential development will not be considered beyond the radial locations within the lifetime of the CWSS Settlement Hierarchy Layer 4: dispersed households A small number of schools are located in the 1(a) Rural A zone (i.e. Laguna Public in the Wollombi Brook catchment, Congewai Public in the Congewai Creek catchment and Blackhill Public in the Four Mile Creek catchment). No growth ring is proposed for future closer settlement growth, as these schools are supported by dispersed households in the rural areas. No land needs to be preserved for this layer. The rural living lots are included in this hierarchical layer, to reflect the more isolated location of these areas, in relation to closer settlement growth Settlement Hierarchy Layer 5: Preservation of Land for Reservation Land within the 2km 5km radii around high schools located in the 2(a) A zone is nominated as the residential reservation layer. This layer recognises the finite nature of relatively unconstrained land for residential development by seeking to conserve such land for future residential growth beyond the timeframe of the CWSS. Accordingly, an outer ring layer for residential lifestyle or rural-residential development has not been specifically nominated around the residential core layer, as development of this nature would create further fragmentation. Similarly, in areas identified as relatively unconstrained within this layer, development which compromises future residential growth will be restricted, and land use provisions nominated that prevent sterilisation of land for the proposed end use, as shown in Figure 10. City Wide Settlement Strategy 59

7 Land within this layer will not be able to be developed without an assessment of the maximum carrying capacity of the land, and the impact of the proposed development on the settlement hierarchy including projected demand and supply. Development will be expected to be fully serviced in this layer. Council will consider unserviced development within this hierarchical layer, i.e., ruralresidential or rural living lots, only in such instances where it can be established that constraints (exclusive of servicing costs) preclude the future development of this land for higher densities. It is emphasised that existing land use provisions currently render the majority of land contained within this layer as unsuitable for future settlement growth. Objective To support the establishment of a sustainable settlement hierarchy by identifying areas for closer settlement growth in a more compact form Contribution to growth in the Lower Hunter Sub-Region Council has been actively consulting with the Hunter (Newcastle) DIPNR office in providing for sufficient opportunities for closer settlement growth recognising that the Lower Hunter will be required to cater for significant additional population (and employment lands), being part of the Greater Sydney Metropolitan Region. This is now being reflected in the Department s Metropolitan Strategy objectives. In agreement with DIPNR, Council has made provision for three times its current growth rate (equating to a growth rate of between 2 and 3 per cent per annum) as well as facilitating certainty for closer settlement growth beyond the 10 year time frame of the strategy in the allocation of future urban precincts. Council s predominant closer settlement precincts are located at Cessnock, Bellbird, Nulkaba, Weston, Heddon Greta and Cliftleigh. Estimations are, that on a LGA basis, the Strategy provides in the order of years supply of land for closer settlement growth at the growth rate required by the Department. When future urban lands are added to this equation, the supply is estimated in the order of 20+ years. The following table shows a breakdown of closer settlement supply at a high growth rate and includes growth scenarios for each catchment. City Wide Settlement Strategy 60

8 Closer Settlement Supply in Years at High Growth Rate + with Adopted Directions and Category A Land Catchment Supply In Years Anvil Creek 8* Black Creek (Investigation Zone (Future Urban) is 13 additional) Congewai Creek 7** Wallis/Swamp/Four Mile Creeks 14 City Wide City Wide with Future Urban Component 20 *Supply impacted by retaining 2(b) Village Zone at Greta **Opportunities for closer settlement growth are limited to villages. Need to balance growth in this catchment with village character and rural/scenic amenity. + High Growth Rate: Three times the LGA s current growth rate based on census figures. 6.3 ADOPTED DIRECTIONS The adopted settlement hierarchy is based on the following structure of settlement growth and as illustrated in Figure 12. Fully Serviced Development Un-serviced Development Future Growth Hierarchical Layers Layer 1 Layer 2 Description Core Fringe Layer 2 Low density Layer 3 Layer 4 Layer 4 Layer 5 Rural- Rural Living/Rural Lifestyle Dispersed households Reservation Indicative Land Use Zones 2(a) A (incorporating the existing 2(c) zone) 2(b) Village lifestyle new land use zone. Primarily rezoning of identified land zoned 1(c) Rural- /Rural (Small Holdings) 1(c), 1(c1) and 1(c2) Rural- Rural Living new land use zone Rural Lifestyle new land use zone Rezoning of identified land zoned 1(a) Rural A 1(a) Rural A N. B.: New land use zone descriptions are contained in Appendix 1. Investigation Zone (Future Urban) new land use zone. Provision of future settlement growth opportunities beyond the lifetime of the CWSS. To address this strategic approach at a catchment level requires Council to consider whether the existing zoned land is appropriate having regard to constraints identified in Section 7, whether additional zoned land is required in individual catchments or other catchment areas, and whether new zones need to be introduced. This analysis is undertaken in the following sections of the CWSS which consider the Growth Management Principles outlined in Section 4 against the settlement hierarchy. Specific catchment direction is incorporated in the individual catchment sections. City Wide Settlement Strategy 61

9 City Wide Settlement Strategy 62 Stockyard Creek Macdonald River Yengo Creek Figure 12: The cluster planning approach as applied to the Cessnock LGA WOLLOMBI Wollombi Brook EAST BRANXTON GRETA Anvil Creek Black Creek NULKABA NEATH CESSNOCK KEARSLEY BELLBIRD ABERNETHY MILLFIELD PAXTON ELLALONG Congewai Creek WESTON Four KURRI KURRI Mile Creek Wallis/Swamp Creek MULBRING Hierarchical Layer 1 Hierarchical Layer 2 Hierarchical Layers 2 & 3 Hierarchical Layer 5 Towns/Villages Catchment Boundary