Endorsement of Draft Helena Valley Urban Expansion Strategy for Advertising
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- BACKGROUND
- 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C64. AUGUST.2016
- FIGURE NO. DESCRIPTION
- 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C65. AUGUST.2016
- Strategic Planning Background
- 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C66. AUGUST.2016
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- 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C68. AUGUST.2016
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10.2 Endorsement of Draft Helena Valley Urban Expansion Strategy for Advertising
File Code PS.PCT 10 – Helena Valley Location / Address See ATTACHMENT 3-1 Landowner Various
Applicant Nil
Zoning LPS4 – Various MRS – Various
255 hectares Use Class N/A
Ward South
Author Christopher Jennings, Senior Strategic Planning Officer Senior Employee Mark Luzi, Director Statutory Services Disclosure of Any Interest Nil
Council is requested to advertise the Draft Helena Valley Urban Expansion Strategy (HVUES) for public comment.
Draft HVUES is a strategy for future urban growth in Helena Valley in a way which seeks to accommodate a growing population in a manner which protects the environment and amenity, improves and provides new infrastructure, and responds to fire risk and landowner aspirations.
Central to Draft HVUES is an understanding that urban growth and environmental and amenity protection are not opposing objectives. In most cases, as with subdivision, urban growth can lead to significant improvements to the environment, infrastructure, risk mitigation which benefits the wider public.
For clarification, Council is not being asked to provide final approval of the plan at this stage. This will be sought in mid-2017, after public feedback has been incorporated into the plan, pursuant to Council’s resolution.
ABBREVIATIONS MEANING ANEF
Australian Noise Exposure Forecast DoP
Department of Planning HVLAS
Helena Valley Landowner Aspiration Survey HVLUS
Helena Valley Land Use Study HVUES
Helena Valley Urban Expansion Strategy LPS
Shire of Mundaring’s Local Planning Strategy 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C64. AUGUST.2016 LPS4
Shire of Mundaring’s Local Planning Scheme No. 4 MRS
Metropolitan Region Scheme Planning framework The total of all planning legislation, strategies, policies and guidelines within the Western Australia’s planning system.
SAT State Administrative Tribunal Shire Shire of Mundaring SPP 5.1 State Planning Policy 5.1 – Land Use Planning in the Vicinity of Perth Airport Subject area The area covered by HVUES WALGA
West Australian Local Government Association WAPC
Western Australian Planning Commission
DESCRIPTION 1 ANEF contours 2 HVUES study area 3 HVLUS study area 4 District recreation site context and location
Helena Valley is an urban growth area in the Shire due to its proximity to activity centres, public transport networks and the availability of utilities and community infrastructure.
The majority of properties in the locality are zoned Urban under the MRS and have been, or are being, subdivided. Approximately 255 hectares of land zoned Rural under the MRS has been identified as potentially suitable for further investigation for urban development.
As well as growth pressures, Helena Valley is also a location of important environmental, historic, cultural, lifestyle and aesthetic significance – containing the Helena River, areas of Bush Forever, Local Natural Areas, heritage places and small rural properties.
As such, many interrelated issues have converged in Helena Valley - including: • proximity to Midland provides an opportunity to create a more sustainable urban form and assists the State Government to achieve its urban infill targets; • a number of environmental assets are currently held on private properties with varying degrees of management quality; • objectives to minimise exposure of a future population to bushfire hazard and linking urban growth to improvement of bushfire risk mitigation efforts; • protection of heritage/cultural places of significance and exposing them to public use and enjoyment; • existing, disconnected urban cells and the associated issues of movement and traffic safety; • fragmented land ownership; and • diverse public views regarding concepts like ‘sense of place’ and ‘amenity, to list a few.
Some of these issues have been explained spatially in ATTACHMENT 3-2. Purpose of Draft HVUES
Draft HVUES seeks to understand and synthesise these numerous, complex and interrelated issues and provide a ‘roadmap’ for logical and prudent growth in Helena Valley for the long-term (2050).
Its current form is one exclusively for the purpose of public comment. It is in a simple and easy-to-read format, but is based on a rigorous understanding of the various planning issues and requirements within the study area and the planning framework.
There are six basic components which comprise Draft HVUES: 1. A map of the study area; 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; 3. A Strategic Infrastructure Plan 4. A Precinct Plan; 5. Precinct Strategies; and 6. Indicative Density and Designs
The following sections of this report: • Describe why Draft HVUES has been prepared in the way it has; • Provides the rationale behind the project scope; • Describe the purpose and outcomes of various technical studies undertaken to inform Draft HVUES; and • Seek Council consent to advertise. Importantly, Council should recognise that Draft HVUES is not a request to rezone properties, a structure plan or subdivision application. Therefore, it does not concern itself with the details characteristic of these stages.
It is a first, pro-active and strategic step in a much longer process of land development, involving nominal risk to the Shire.
Perth and Peel @ 3.5 Million & Draft North-East Sub-Regional Planning Framework Perth’s population is anticipated to grow to 3.5 million by 2050. The WAPC aims to manage this growth through high level strategic planning - Perth and Peel @ 3.5 Million and the Draft North-East Sub-Regional Planning Framework.
These strategies aim to manage population growth by supporting development which is: • Liveable; • Prosperous; • Connected; • Sustainable; and 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C66. AUGUST.2016 • Collaborative Perth and Peel @ 3.5 Million identifies areas in the Shire suitable for growth, including: • North Parkerville Townsite; • North Stoneville Townsite; and • a portion of 1100 (Lot 800) Katharine Street, Bellevue (Council resolved to support a structure plan over this area at its meeting of 12 July 2016 – C7.07.16).
The Draft North-East Sub-Regional Planning Framework refines the growth strategies in Perth and Peel @ 3.5 Million for the Shire of Mundaring, Shire of Kalamunda and the City of Swan. They are as follows:
•
Avoid, protect and mitigate environmental attributes (with the emphasis on avoiding and protecting) when allocating proposed land uses; •
Develop a consolidated urban form that limits the identification of new greenfield areas to where they provide a logical extension to the urban form, and that places a greater emphasis on urban infill and increased residential density; •
Limited support for new rural residential development, with the emphasis on areas currently zoned for the purpose; •
Avoid areas that are of a high risk of bushfire to manage the potential impact on people, property and infrastructure; •
Provide effective and sustainable management of water resources including drainage, nutrient management and water allocation to minimise environmental impacts, recognising a drying climate; •
Promote shared infrastructure corridors for transport, community/social and service infrastructure (where appropriate); •
Maximise the use of existing infrastructure, including transport, community/social and service infrastructure where there is a concentration of urban and employment opportunities; •
Increase the number of people living close to where they work with the identification of suitable sites for employment within the sub-region, with a concentration on strategic employment; •
Protect employment land from other competing land uses; •
Integrate land use and public transport to contribute to maintaining air quality; and •
Identify ultimate land uses for industrial and public purposes sites, while promoting access to finite basic raw materials, through the staging and sequencing of development. 09.08.2016 COUNCIL MEETING CONFIRMED MINUTES C67. AUGUST.2016
Particular mention is made of tree protection: The abundance of trees in the ‘hills’ landscape is an important component of the ‘tree change’ lifestyle which attracts people to the area. Future development within the sub-region will need to have careful consideration of these attributes and also address bushfire risks… The challenge will be to integrate or create design responses to existing environmental and landscape features (such as significant slopes, wetlands, distinctive vegetation and view corridors) at more detailed planning stages to maintain Helena Valley’s sense of place.
Lifestyle factors have also been considered: A key environmental attribute that attracts population growth in the sub- region is the hills landscape, with its string of traditional low-density rural settlements set in undulating agricultural areas with a substantial number of large remnant trees and pockets of orchards and other more intensive rural pursuits. These areas will be subject to additional pressure to meet residential, recreation and tourism demands, while the increased risk of bushfire in a drying climate also needs to be considered.
And The retention of aesthetic, recreational and cultural values is also important.
And
Planning and development of the hills landscape will need to be undertaken in careful consideration of these local and strategic issues.
Importantly, with regards to staging and sequencing: Development which is not sequential, even when supported by an approved structure plan, will be expected to have agreed and finalised funding arrangements with essential service providers in place before rezoning under a region planning scheme will be considered.
These high-level strategic planning principles have been used to underpin the more detailed precinct strategies in Draft HVUES.
However, there is an evident disparity between the Draft North-East Sub- Regional Planning Framework and the Shire’s own LPS.
Local Planning Strategy Background Before the release of both Perth and Peel @ 3.5 Million and the Draft North-East Sub-Regional Planning Framework, the WAPC endorsed the Shire’s LPS.
C68. AUGUST.2016 The LPS provides specific strategic planning guidance to the Shire for the next 10-15 years and was adopted by Council on 31 July 2012 (SC5.07.12).
In relation to Helena Valley, the LPS states: Land between the area rezoned to Urban in MRS Amendment 1160/41 (see ATTACHMENT 3-3) and the smaller residential area to the east, around the intersection of Helena Valley and Ridge Hills Roads, is identified in the Foothills Structure Plan as Landscape Protection, effectively a rural buffer which may include rural residential subdivision and use…However, it is now appropriate to review this position, in light of the now recognised need to promote a more compact form of urban development at the metropolitan level. Parts of this landscape buffer may be able to accommodate more development (residential or rural residential), while still retaining some buffer to protect landscape and environmental values. Accordingly, this Strategy recommends that a separate study investigate the potential for closer subdivision, either residential or special residential (these would require amendment of the MRS) or smaller- lot rural residential for land north and south of Helena Valley Road, between the two existing areas of MRS Urban zoned land, but having strong regard for landscape protection, floodplain management and protection of watercourses traversing the area.
The Draft North-East Sub-Regional Planning Framework does not identify this area as one for ‘Urban Investigation’ (refer to ATTACHMENT 3-4). The Shire has sought an explanation as to why the WAPC’s draft framework does not identify Helena Valley for Urban Investigation. A response has not yet been provided.
Advocacy When the WAPC released the Draft North-East Sub-Regional Planning Framework for public comment, the Shire outlined its concern that it underestimated the Shire’s growth prospects and was inconsistent with the LPS.
The Shire’s submission gave general support for a strategic approach to growth, but expressed concern about the exclusion of Helena Valley from the ‘Urban Investigation’ area and recommended it for inclusion, consistent with the LPS.
A subsequent letter was addressed to the Minister reiterating the Shire’s concerns and requesting that the Draft North-East Sub-Regional Planning Strategy be amended to ensure consistency with the LPS.
The Draft North-East Sub-Regional Planning Framework has not yet been finalised by the WAPC nor has a response been provided by the Minister.
Should the Draft North-East Sub-Regional Planning Framework be finalised in its current form, it may restrict the Shire or WAPC being able to contemplate urban growth in Helena Valley pre-2050.
This has created an awkward situation where the Shire is expected to advance a strategy for urban growth for an area identified for growth in one strategic planning document but not in another.
The various risk implications of this situation is discussed later in the report. Local Government Reform In addition to these planning matters, the WA Liberal Government’s Local Government Reform agenda delayed the Draft HVUES project.
The Local Government Reform agenda was formally commenced in 2009. In October 2014, the government announced local government boundary adjustments and proposed amalgamations.
Relevant to the Shire was a decision to realign the City of Swan’s boundary to incorporate the Shire of Mundaring. Unexpectedly, the reform agenda was dropped in February 2015 for the foreseeable future.
As a consequence, the Draft HVUES project was held in abeyance in the lead-up to local government reform as it was foreseen that Shire projects would be re- prioritised under City of Swan. That is, it was considered imprudent to continue resourcing a project that was likely to be reprioritised.
As well as these reforms, the State planning framework continued to undergo a number of changes affecting the area of land in Helena Valley able to be considered for urban growth; most significantly, to State Planning Policy 5.1. State Planning Policy 5.1: Land Use Planning in the Vicinity of Perth Airport SPP 5.1 is a policy of the WAPC which identifies land use planning controls in areas affected by aircraft noise. It was reviewed by the WAPC and subsequently adopted in July 2015. Among its changes was the withdrawal of a plan showing the ANEF and reference made instead to the latest version of the ANEF on the Perth Airport Pty Ltd website:
The version of the ANEF in the former SPP 5.1 and that currently maintained by Perth Airport Pty Ltd are substantially different.
Specifically, the “>25 ANEF” has contracted over Bellevue and Helena Valley (refer to Figure 1 below).
This has a number of key strategic planning implications on the Shire. Most significantly, the land able to be considered for Urban development under the MRS has grown in proportion with the contraction of the “>25 ANEF” contour.
C70. AUGUST.2016 As set out in SPP 5.1 for areas between 20 ANEF and 25 ANEF:
• land is identified as appropriate for more intensive development through strategic planning instruments such as a regional or sub- regional structure plan; • a higher density coding is desirable to facilitate redevelopment or infill development of an existing residential area; and • it can be demonstrated that the public benefits of higher density coding outweigh the negative impacts of exposing additional residents to aircraft noise.
For land affected by an ANEF greater than 25, the following provision applies: Under no circumstances should ‘Rural’ or other non-residential zoned land be rezoned for residential development or any other form of development involving building types identified as ‘Unacceptable’ with reference to the building site acceptability table in Appendix 1.
Simply put, additional land in Helena Valley and Bellevue has become potentially suitable for rezoning to Urban under the MRS as a result of changes to SPP 5.
Since the changes to SPP 5.1 were made after the release of the Shire’s LPS and the WAPC’s Draft North-East Sub-Regional Structure Plan, such areas have not been identified in these documents, but reasonably should be identified now.
Therefore, one of the strategies in Draft HVUES is to undertake an amendment to LPS4 to bring it into conformity with SPP 5.1 by modifying the Special Control Area related to aircraft noise and investigating the Rural zoned land for an Urban zone under the MRS.
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