Endorsement of Draft Helena Valley Urban Expansion Strategy for Advertising
COUNCIL MEETING CONFIRMED MINUTES
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- Year Study and Purpose 2012
- STATUTORY / LEGAL IMPLICATIONS
- BALANCED DEVELOPMENT Objectives 1. To promote and encourage environmentally sustainable development
- Priority Description
- 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C74. AUGUST.2016
- SUSTAINABILITY IMPLICATIONS
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- Components
- ATTACHMENT 3-7
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- Helena Valley Land Use Study (HVLUS)
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- HVLUS - Opportunities/Objectives Environmental
- Economic/Infrastructure
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- Constraints Environmental
- Social
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09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C71. AUGUST.2016
Source: Perth Airport Pty Ltd.
The fluidity of planning strategies and timing of reforms are the reasons the Shire has deliberately taken a precautionary approach to preparing Draft HVUES.
A district-level structure plan was considered but would have required a number of detailed technical reports to be prepared at considerable cost (around $400,000). Given the high degree of uncertainty around whether the study area will even be considered for urban expansion by the WAPC, it was considered financially imprudent to proceed with this option.
An adaptive management approach was adopted instead to appropriate respond to the high levels of uncertainty. Measures included the preparation of a simple yet robust plan and associated strategies, informed by a number of technical documents and landowner survey results to be further refined through a rigorous consultation process.
Studies Various investigations, technical studies and plans were prepared in the lead-up to Draft HVUES and are outlined in the table below. Due to local government reform, uncertainties around the planning framework and priorities within the Shire’s Corporate Business Plan, these studies and plans have been staggered over a number of years.
Helena Valley Urban Expansion Planning Investigations: • groundwork for preparation of a District Structure Plan for Helena Valley; • investigated issues including but not limited to: bushfire management, commercial demand, allocation of recreation facilities and open space, road network capacity and connectivity; and • literature review. 2013 Helena Valley Urban Expansion Planning Investigations scope extended and renamed HVLUS.
Modifications included: • consideration of development in Bushmead and Bellevue; • examination of a number of constraints including floodways and infrastructure; • setting expectations for planning principles, zoning preferences and key connection points; • liaison with state government agencies responsible for foreshore protection and service provision; and • providing more detailed population forecasts. 2014 (Local Government Reform) 2015 Traffic and Land Use Study prepared to identified potential transport infrastructure required to accommodate the growth anticipated by the HVLUS. 2015 Focus groups in each precinct undertaken to gauge landowner aspirations for their properties and Helena Valley more broadly (HVLAS).
Draft HVUES is a strategic planning document and does not have statutory weight. Therefore, there are no statutory or legal implications if Council resolves to advertise Draft HVUES for public comment. Should Council resolve in mid- 2017 to adopt a final version of HVUES, it will be the responsibility of individual landowners to pursue the statutory processes of rezoning under the MRS and LPS, by means of preparing structure plans and subdivision applications. Each of these processes is bound by separate legislation and would be subject to further reporting to Council.
The strategic policy implications of the Shire and WAPC have been discussed in the Background section of this report.
Should Council resolve to consent to advertise Draft HVUES, it is expected that there will be significant public interest in the proposal.
Officer time will be spent answering questions, meeting with community groups and collating and assessing feedback. Preparation of final plans is likely to require specialised graphic design work which will attract some costs. However, these are not expected to be significant.
This section of the report addresses implications to the Shire’s strategic administrative objectives.
The Shire’s Corporate Business Plan 2015/16-2018/19 identifies the preparation of HVUES as follows:
Objectives 1. To promote and encourage environmentally sustainable development Year 1 (15/16) Year 2 (16/17) Helena Valley Urban Expansion Strategy – endorse draft for the purpose of consultation Helena Valley Urban Expansion Strategy – adopt
The underpinning strategies of Draft HVUES are aligned to the WAPC’s and Shire’s strategic planning agenda which seek to “promote and encourage environmentally sustainable development.”
Draft HVUES is therefore consistent with the intent and timing for the project set out in the Corporate Business Plan 2015/16-2018/19.
The Shire’s 2016-2026 Strategic Community Plan – Mundaring 2026 – sets out community priorities. Draft HVUES aligns with priorities set out in Mundaring 2026 , as per the table below:
Prudently consider resource allocation & practise effective governance and financial risk management As discussed previously in this report, Draft HVUES has been prepared with a precautionary, adaptive management approach.
Plan in place for mitigating the effects of natural disasters Draft HVUES proposes to create important district-level network linkages and infrastructure upgrades to mitigate bushfire risk. Strategies recognise flood prone areas and seek 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C74. AUGUST.2016 to avoid development in those areas. Provide community venues and facilities for different demographics Open space and opportunities for recreation are a vital component of Draft HVUES. Specific strategies have been identified for recreation grounds south of the Helena River. Encourage environmental tourism by supporting nature based activities & encourage preservation of clean local waterways Draft HVUES proposes extension to the Parks and Recreation Reserves under the MRS around the Helena River which will likely encourage environment based tourism and activity. Engage with and support the local business community Should Council resolve to adopt Draft HVUES for the purposes of advertising, it will be made widely available to the public – including businesses. Furthermore, particular strategies have been made relating to commercial needs. These investigations are anticipated to involve further consultation with the business community. Improve safety on road, cycle and footpath networks The scope of infrastructure requirements will be refined through the consultation process. Pedestrian, vehicle and public transport issues have been addressed in the traffic study and will be given closer attention at each stage of subsequent planning (i.e. finalisation of HVUES, MRS Amendment, scheme amendment, structure planning and so on).
Draft HVUES is underpinned by planning principles within the State and Local planning framework which itself is based on the objective of sustainability. relevant parts of the planning framework. Therefore, the sustainability implications of Draft HVUES are set out in the sections of this report assessing the relevant parts of the planning framework. RISK IMPLICATIONS
The Background section of this report discusses how an adaptive management approach has been used to address some of the uncertainties involved in the project. This section provides a more detailed risk assessment of the two key risks identified.
09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C75. AUGUST.2016
Should the WAPC resolve to exclude the Draft HVUES study area from ‘Urban Investigation’ in the adopted version of the North-East Sub-Regional Structure Plan discussed earlier, it will likely prevent urban growth in the study area for the foreseeable future.
The Shire has continued to prepare HVUES in a manner which recognises this as a possibility.
Consideration was given to abandoning HVUES. However, this was ultimately considered imprudent since the WAPC may ultimately resolve to include the study area within the ‘Urban Investigation’ category.
The Shire has been advised by DoP officers that the Draft North-East Sub- Regional Planning Framework is likely to be finalised towards the end of the year. The Shire has been verbally advised it will be invited to make a deputation on Shire concerns.
Consideration has been given to awaiting an outcome of this decision. However, this was considered imprudent for two reasons: 1. There is also an expectation from the community to deliver Draft HVUES; and 2. If Draft HVUES is adopted before a decision by the WAPC on the sub- regional structure plan, it would act as a strong advocacy tool to advance the objectives of the Shire’s LPS.
Draft HVUES is a strategy to provide high level guidance on future amendments to the MRS, LPS4, subdivision and development applications. It is not a statutory document and therefore, is not subject to appeal to SAT.
Should an applicant resolve to appeal a WAPC decision on a future structure plan, subdivision or development made on the basis of HVUES, HVUES may come under scrutiny.
However, each of the strategy precincts are based on sound planning principles and will have undergone a comprehensive process of public advertising and refinement. Therefore, any appeal on the planning merits of HVUES would be difficult for an appellant to justify.
Initiation of advertising Draft HVUES is the recommendation of this report. As well as internal consultation, officer-level comment has been sought from Water Corporation, Western Power, WAPC, Department of Water and Main Roads.
09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C76. AUGUST.2016 The advice of the WAPC is that since Draft HVUES is a strategy under the LPS, separate approval from the WAPC is not required. Nevertheless, the Shire considers it prudent to refer Draft HVUES to the WAPC for comment since it has responsibility for administering Perth and Peel @ 3.5 Million, the Draft North-East Sub-Regional Planning Framework, amendments to the MRS and LPS4, structure plans, subdivision and some developments.
Water Corporation advised that a road crossing over Helena River, connecting Katharine Street with Helena Valley Road in the location identified for district recreation grounds may be suitable.
Service providers (Western Power and Water Corporation) advised that the growth scenarios appear to be a logical extension of the urban front and subsequent to endorsement, will be factored into the long-term planning of those agencies.
Discussions with Main Roads have involved elevating the priority of and proposing potential solutions to the Scott Street/Great Eastern Highway intersection.
The following sections provide the rationale behind and a detailed description of the contents of Draft HVUES which, if adopted by Council, will be provided during advertising.
There are six basic components of Draft HVUES: 1. A map of the study area (see ATTACHMENT 3-1); 2. An overlay of study area showing the extent of the proposed Urban zone, Urban Deferred zone and Parks and Recreation Reserve under the MRS (see ATTACHMENT 3-7); 3. A Strategic Infrastructure Plan (see ATTACHMENT 3-6) 4. A Precinct Plan (see ATTACHMENT 3-5); 5. Precinct Strategies (see ATTACHMENT 6); and 6. Indicative Density and Designs.
Draft HVUES study area was defined by the LPS in the following terms: ...land north and south of Helena Valley Road, between the two existing areas of MRS Urban zoned land
As identified in Figure 2, the study area covers most of the rural zoned land under the MRS between the two existing urban zoned areas in Helena Valley, south of Katharine Street and north of the City of Swan’s/Shire of Kalamunda’s municipal boundaries. The property at 1100 (Lot 800) Katharine Street and the rural zoned properties further to the south were not identified for inclusion in the 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C77. AUGUST.2016 original study area as, at the time the LPS was written, the ANEF had not contracted in this location.
Figure 2
It is anticipated that the final subject area may be varied as a result of wider consultation and changes to the planning framework.
The purpose of the HVLUS study (refer to ATTACHMENT 4 ) was to: Identify key opportunities, issues and constraints for future land use and development in the area. It is intended to guide and inform future proponents in the initiation of requests for amendments to the Metropolitan Region Scheme (MRS) and the preparation of more detailed local structure plans.
The study area covered by HVLUS is slightly different to that covered by Draft HVUES (refer to Figure 3) in that it excluded the northern portion of 1100 (Lot 800) Katharine Street and included existing urban zoned land north of Katharine Street and additional land east of Fyfe Street containing sensitive environments.
Draft HVUES has excluded land currently zoned Urban under the MRS north of Katharine Street which is subject to a separate strategy within the LPS.
Some properties east of Fyfe Street were also excluded given the significant constraints to urban development potential by watercourses, fire risk, topography and significant vegetation.
HVLUS revealed a number of findings which guided the preparation of Draft HVUES which have been summarised in the table below:
Environmental • Secure the Helena River foreshore as Crown land and facilitate public access • Environmental protection – landscape, floodplain, watercourses and threatened species • Seek continuity with ecological corridors • District Water Management Strategy not required Social • Provide for an ageing population • Seek to maintain some rural lifestyles • Protect place of cultural significance and views of significance Economic/Infrastructure • Encourage housing diversity, employment diversity and employment self-sufficiency • Seek to achieve a density of 15 dwellings per gross hectare area (approximately Residential R30) but also provide a variety of densities and housing typologies • Review service levels • Limited need for local POS given extent of Parks and Recreation Reserve • Secure active open space/recreational facilities south of Helena River • Seek road connection to former Bushmead Rifle Range site • Provide pedestrian and cycle access to Helena River and connections to existing networks • Investigate need for increased capacity in local schools • Telecommunication networks and power supply available 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C79. AUGUST.2016 • Industrial/service commercial expansion • Assess commercial and recreational needs as part of separate studies • Extend Samson Street across the Helena River • Extend Fyfe Street across the Helena River as an emergency vehicle crossing
• Poorly draining soils near the Helena River • Areas of Acid Sulphate Soils • Absence of groundwater data • Erosion near existing watercourses • Contaminated sites • Water scarcity • Flood prone areas • Bushfire hazard and limited means of egress Social
• House sizes disproportionate to number of occupants Economic / Infrastructure • Provision of sewer required to areas not currently connected • Unavailability of gas network in some areas • New wastewater pump station/s required • 330kV power easement • Cost of waterway management and bridge crossings • Limited additional commercial floor space available • Extent of future urban zone under the MRS not known • Low public transport patronage • Transport infrastructure requirements: o Upgrade of Roe Highway to a freeway standard; o Freight rail realignment; o Extension of Farrall Road to Clayton Road o Widening of Clayton Road to four lanes around Roe Highway; o Upgrade of Helena Valley Road, including a flyover Roe Highway; and o Upgrade of other local roads as required Several of the opportunities/objectives and constraints identified by HVLUS are able to be dealt with at a more detailed levels of planning - for example, investigation of identified heritage places and the preparation of flora/fauna assessments.
However, there are also some higher level strategic planning issues which have direct impact on Draft HVUES and have been incorporated into the plan. These included:
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• Protecting areas of landscape significance; • Avoiding bushfire prone areas or seeking to mitigate risks if rezoning/development in a bushfire prone areas would deliver strategic benefits; 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C80. AUGUST.2016 • Preserving some rural lifestyle lots and places of cultural significance for amenity and intrinsic heritage values; • Providing a diversity of housing with densities averaging Residential R30; • Providing district-level recreation facilities; • Providing strategic road, bridge, cyclist and pedestrian connections in response to traffic and safety requirements; • Investigating and providing for commercial requirements; • Implementing appropriate funding/staging mechanisms for key pieces of infrastructure (Development Contribution Plan); and • Acknowledging that growth rates, staging and commercial needs are market-driven and strategies should remain flexible to respond to these changes, but rigorous enough to provide a clear direction for growth.
Future traffic demand and infrastructure requirements/funding in particular were a major consideration in the preparation of Draft HVUES.
A separate traffic study was commissioned to examine in more detail the traffic demands arising from anticipated population growth and the effect that this could have on the wider road network and funding arrangements.
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