Residential Development Position Paper · 2016. 9. 2. · Residential Development Position Paper 20/05/02! The designation of land for a broad range of housing types. Housing mix

Residential DevelopmentPosition Paper

May 2002

‘balancing growth and lifestyle in the Redlands’

Redlands Planning Scheme

Residential Development

1Residential Development Position Paper 20/05/02

1 Introduction 1

1.1 Background 1

1.2 Purpose of this Paper 1

1.3 Relevant Issues 2

1.4 Currency of Data 2

2 Current Planning Scheme: Approach Analysis (Strengths and Weaknesses) 3

2.1 General 3

2.2 Residential Provisions – Strengths 7

2.3 Residential Provisions – Weaknesses Analysis 8

3 Residential Development 9

3.1 Existing Residential Structure 9

3.2 Residential Activity 13

3.3 Residential Land Supply 14

3.4 Future Residential Growth 16

3.5 Residential Design & Character 20

3.6 State Agency Interests 22

4 Planning Implications 24

5 Planning Strategy Areas 27

5.1 Urban Efficiency 27

5.2 Residential Land Supply 27

5.3 Residential Density 27

5.4 Residential Choice & Affordability 27

5.5 Residential Design 27

5.6 Residential Amenity 27

5.7 Character Protection 28

6 References 29



1 Introduction

1.1 Background

The following position paper addressing Residential Development, is one of twelve (12) position papers addressing key aspects of future land use and development policy in Redland Shire. The paper has been prepared as part of Stage 3 of the Redlands Planning Scheme project and is intended to inform the land use option identification and assessment process programmed to occur in Stage 4. The outcomes of Stage 4 will be reflected in the Redland Shire Planning SchemeStatement of Proposals due to be released in early 2002.

Planning position papers prepared as part Stage 3 are as follows:

1. Population & Demographics2. Residential Development3. Industry & Business4. Commercial & Retail (Centres)5. Rural6. Conservation & Open Space7. Constraints8. Environmental Management9. Cultural Heritage10. Community & Social Development 11. Transport12. Infrastructure

1.2 Purpose of this Paper

The residential areas of Redland Shire accommodate the urban population and have critical bearing on the maintenance of many of the unique lifestyle attributes of the Shire.

Like many other urban areas throughout Australia, Redland Shire is experiencing sustained population growth andcorresponding levels of urban expansion and intensification. Such growth has been required to respond to market issues including the ageing of the population, reduced household size and changes in demand for alternative styles ofaccommodation.

This paper examines the existing patterns of urban and rural residential development, the key factors and trends influencing the supply, demand and location of residential land, and the implications for future urban growth.

The development of strategies to deal with future residential development in Redland Shire are necessarily based on analysis of the existing residential market and an assessment of the future capacity of the Shire to absorb projected population growth.



1.3 Relevant Issues

The following paper necessarily considers a range of issues relevant to future residential development in the Shire. These include:

• Future Residential Needs -The quantum of residential land required to accommodate projected population growth;

• Location of Residential Growth -Nomination of future residential growth areas;

• Urban Efficiency -The need to limit urban sprawl and promote an efficient urban pattern;

• Residential density - The intensity and form of residential development;

• Housing choice – Promoting the availability of a range of housing sty les;

• Housing affordability – The economic capacity to access appropriate housing;

• Residential design - The design integrity of residential development having regard to architectural merit, energy efficiency and climate conscious design principles;

• Residential amenity - Promotion of more pleasant and livable residential areas;

• Heritage/Character Protection - Maintenance of residential heritage and character values.

1.4 Currency of Data

The Population and Demographics Position Paper reflects recently obtained population projections produced by the Planning Information and Forecasting Unit, Department of Local Government and Planning. These figures will be used as official Council population projections until updated information becomes available.



2 Current Planning Scheme: Approach Analysis (Strengths andWeaknesses)

2.1 General

Residential provisions under the 1988 Planning Scheme include those contained within the Strategic Plan, DevelopmentControl Plans, and the Zoning schedule. The primary attributes of the existing regulatory framework as it applies toresidential development is summarised in Figure 2.1:

Figure 2.1 – Residential Development – Existing Regulatory ElementsPlanning Scheme

ComponentControl Element Control Element

DescriptionKey Features Locational

Relevance

Strategic Plan Preferred Dominant Land Use

Urban Residential ! Designates areas intended to accommodate primary concentration of urban residential development

! Primarily provides for detached housing, but also permits multiple dwelling, small lot and dual occupancy forms.

! Preferred Density range 10-15 dwellings/hec tare

! Permits non-residentialsupport facilities.

! Full urban servicing

! Allurbanisedsuburbs

Preferred Dominant Land Use

Medium Density Residential

! Designates areas intended to accommodate a variety of housing forms including multiple dwelling development at varying densities.

! Primarily provides for cluster or townhouse forms.

! Preferred Density range up to a maximum of 100 persons / hectare

! Permits non-residentialsupport facilities.


! Thorneside! Birkdale! Wellington

Point! Ormiston! Capalaba! Cleveland! Victoria Point! Redland Bay



Planning Scheme Component

Control Element Control Element Description

Key Features LocationalRelevance


Residential Low Density

! Designates areas intended to accommodate a low density residential environment within themain urban settlement areas of the Shire.

! Primarily provides for detached housing on large allotments of around 2000m2

! Most areas currently developed for this purpose.


! Thorneside! Wellington

Point! Ormiston! Alexandra

Hills! Thornlands! Victoria Point! Redland Bay


Park Residential ! Designates areas primarily intended to accommodate detached residential allotments of around 6000m2

! Building envelope controls to limit land clearing

! Provides for detached housing in an open semi-rural environment

! All urban servicing except sewerage required

! Capalaba! Alexandra

Hills! Thornlands! Mt Cotton


Specific Planning Intent ! Specific planning intents for defined localities.

! Nature of preferred development and land use subject to individual guidelines.

! WellingtonPoint

! Birkdale! Mt Cotton! Thornlands! Victoria Point

Development Control Plans

DCP 1 – Shire WideDCP 2 – ClevelandDCP 3 – Point LookoutDCP 4 – CapalabaDCP 5 – East ThornlandsRedland Bay DCP

Preferred Planning Intents

Supplementary Tables of Development

! Location specific development guidelines

! Shire Wide! Cleveland! Point

Lookout! Capalaba! East

Thornlands! Redland Bay

Zoning Schedule Zone Residential A ! Provides primarily for detached housing

! Makes provision for dwelling houses to be approved without consent, but subject to

Areas included in the zone throughout the Shire.

1Subject to a maximum density of 60 persons / hectare






conditions of approval on allotments greater than 450 sqm

! Other permissible residential uses include dwelling houses, relatives apartments, multiple dwellings 1,accommodation units and community dwellings.

! Full urban servicing required

Zone Residential B ! Provides primarily for higher density, multiple unit accommodation

! Makes provision for dwellings to be approved with consent on allotments less than 450 sqm

! Other permissible residential uses include dwelling houses, relatives’ apartments, accommodation units and community dwellings.

! Full urban servicing required.

Areas included in the zone throughout the Shire. Primary concentrations of land included in this zone occur on lands adjoining themajorcommercialcentres of Cleveland and Capalaba and associatednodes along theClevelandBranch Railway (Ormiston,Wellington Point, Birkdale and Thorneside)

Zone Residential Low Density

! Provides primarily for detached housing on large allotments.

! Min allotment area –2000m2 – 6000m2

! Other permissible residential uses include dwelling houses, relative’s apartments, accommodation units and community dwellings.

! Multiple Dwellings are non-preferred.

! Full urban servicing required

! Birkdale! Alexandra

Hills! Thornlands! Redland

Bay

Zone Park Residential ! Provides primarily for Rural Residential

! Capalaba! Thornlands






development.! Min allotment area –

6000m2

! Other permissible residential uses include dwelling houses, relative’s apartments, accommodation units and community dwellings.

! Multiple Dwellings are non-preferred.

! Partial Servicing (excluding sewerage and underground drainage)

Sheldon! Birkdale

Transitional Planning Scheme Policy

Residential Code for Multiple Dwelling Development 2001

Policy ! Provides a set of performance based standards to cover all aspects of multiple dwelling development.

! Requirement to submit site analysis plan, development summary, statement of compliance, street character and context analysis and site development plans with developmentapplications.

! Developmentapplications assessed against the following design elements:! Streetscape

amenity;! Building size and

bulk;! Building setback

and site coverage;! Building unit

design and appearance;

! Car parking and site access;

! Landscaping and open space;

! Climatic design;! Visual and

acoustic privacy;! Security;! Site facilities;

! All urban land where multipledwellingsarepermissible.






! Earthworks and site drainage;

Transitional Planning Scheme Policy

Residential Code for Small Allotment detached Housing under 600m2

- ! The planning scheme allows allotments under 600m2 with a frontage less than 20 metres.These guidelines provide for the design and development on allotments below this area to a minimum area of 300m2 and with a minimum frontage of 10metres.

! Development is assessed against the following elements:! Building envelope

and siting;! On site car parking

and access;! Private open

space;! Visual and

acoustic privacy;! Security;! Energy

conservation;! Dwelling entry and

interior;! Site facilities;! Building

appearance;! Walls and fences;

and! Construction

details.

! All urban land where small lot housing is permitted.

2.2 Residential Provisions – Strengths

! The Strategic plan includes broad strategies for the design and location of residential development that establishes the basis for more detailed planning controls.

! The inclusion of the Integrated Local Area Planning principles in the planning scheme (Strategic Plan) that provides a broad strategic basis for this concept.

! The inclusion of specific Development Control Plans relating to areas such as East Thornlands, Cleveland, Point Lookout, etc.

! The designation of medium density development around centres and public transport nodes.



! The designation of land for a broad range of housing types. Housing mix opportunities are under defined controls.

! The development of housing at Point Lookout that compliments and enhances the character of the township.

! Specific planning controls for multiple dwelling development and ‘small lot housing’.

2.3 Residential Provisions – Weaknesses Analysis

! The desired densities prescribed by the Strategic Plan for the Urban Residential designation have not been realised by actual development.

! The designation of land as Residential Low Density that is provided with full urban services is an inefficient form of urban development.

! The lack of clear controls in those areas included within Specific planning intents.

! The multiple dwelling code includes acceptable solutions that are performance-based criteria.

! Despite the existence of Medium Density designated land around centres and transport nodes, further land is required to be designated to ensure grater efficiencies of public transport and greater vitality and vibrancy of centres.

! According to the development industry the multiple dwelling policy is too complicated for smaller developments.

! The subdivision provisions as contained in the Planning Scheme are in need of updating and review.

! There is a lack of Development Control Plans in growth areas such as Redland Bay.

! The SMBI subdivisions give no consideration to topography, road access, suitability for development and sustainability of development.

! According to the development industry the small lot code (particularly, the acceptable solutions of the code) and the building envelope controls are very restrictive.



3 Residential Development

3.1 Existing Residential Structure

3.1.1 Dwelling Structure

Statistics reveal that between 1986 and 1996 while the resident population of Redland Shire increased from 60,231 persons to 103,082, the Shire also experienced an increase in total dwellings from 20,920 to 37,996. This contributed to acorresponding albeit slight reduction in average persons per dwelling from 2.88 in 1986 to 2.71 in 1996.

As illustrated in Figure 3.1.1 the most notable increase was experienced in the Separate House category that increased by a total of 12,171 dwellings or 69.5% over the ten years to 1996. Despite the absolute increase in overall dwelling numbers, declining dwelling occupancy reflects broader trends of shrinking household size coupled with the inherent ageing of theShires population.

Figure 3.1.1 – Redland Shire - Number of Dwellings by Dwelling type.

Dwelling Type 1986 1991 1996Separate House 17502 24328 29673Semi Detached 644 1470 3725Other Dwelling 647 687 575Not Stated 125 101 980Unoccupied Dwelling 2002 2724 3043Total 20,920 29,310 37,996

Source: QDLGP, (1998) 1996 Census Report Queensland Planning, Information and Forecasting Unit, Queensland Department of Local Government and Planning, p.61

Changes in overall dwelling structure by dwelling type are illustrated in Figure 3.1.2



Figure 3.1.2 – Redland Shire – Dwelling Structure

The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996accounted for 78.09 % of the Shires total dwelling stock. This is indicative of the low-density development trends that have typified residential development in the Shire.

Notwithstanding the dominance of single unit detached development, an increasing proportion of the population is beingaccommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996. This suggests increased availability and popularity of non-detached housing forms2.

To date, the growing importance of more intense form of housing stock has however been indicative of changing lifestyle trends rather than density -related planning intervention. Figures 3.1.3 and 3.1.4 illustrate dwelling structure as a proportion of total dwelling stock.

Figure 3.1.3 – Proportion of total housing stock by dwelling type

Dwelling Type 1986 % of total Housing Stock

1991 % of total Housing Stock

1996 % of total Housing Stock

Separate House 17502 83.67 24328 83 29673 78.09Semi Detached 644 3.07 1470 5.01 3725 9.8Other Dwelling 647 3.09 687 2.34 575 1.51Not Stated 125 0.6 101 0.34 980 2.57UnoccupiedDwelling

2002 9.56 2724 9.29 3043 8

Total 20920 100 29310 100 37996 100

2Includes dual occupancy, units, townhouses and other medium density housing forms

0

5000

10000

15000

20000

25000

30000S

epar

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Figure 3.1.2 - Dwelling Structure - Redland Shire 1986-1996

1986

1991

1996



Figure 3.1.4 – Proportion of Total Housing Stock by Dwelling Type

3.1.2 Dwelling Occupancy

Figures 3.1.5 and 3.1.6 illustrate dwelling occupancy by dwelling type of Redland Shire between 1986 and 1996.

Figure 3.1.5 – Redland Shire Dwelling Occupancy by Dwelling Type – 1986-19961986 1991 1996Dwelling Type

Total Av. Person / Dwelling



Separate HouseSemi-DetachedOther DwellingNot StatedTotal/All Occupied Dwellings

17,502644647125

20,920

3.11.82.02.9

3.1

24,3281,470687101

29,310

3.11.81.93.1

3.0

29,6733,725575980

37,996

3.01.81.72.4

2.8

Sep

arat

e H

ouse

Sem

i Det

ache

d

Oth

er D

wel

ling

Not

Sta

ted

Uno

ccup

ied

Dw

ellin

g

1986

19960102030405060708090

Dwelling Type

% of Total

Dwellings

Figure 3.1.4 - Proportion of Total Housing Stock by Dwelling Type

1986

1991

1996



Figure 3.1.6 – Average Dwelling Occupancy by Dwelling Type 1986 - 1996

On a Shire-wide basis average occupancy levels have tended to decline from 3.1% in 1986 to 2.8 in 1996. Reductions in occupancy have been confined to the separate house and other dwelling category, while semi-detached dwellings have maintained stable occupancy levels of 1.8 persons per dwelling since 1986.

In respect of the mainland areas of the Shire, occupancy rates tend to vary depending on the locality concerned.

Average occupancy levels on the basis of available dwelling statistics for 2001 are illustrated in Figure 3.1.7

Figure 3.1.7 Mainland Dwelling Occupancy 2001

Suburb 2001 Mainland Dwellings

2001 Mainland Population

Persons / Dwelling

Alexandra Hills 5617 18364 3.3

Birkdale 4308 13303 3.1

Capalaba 5826 17952 3.1Cleveland 5030 13351 2.7

Mount Cotton /

Sheldon 1354 4266 3.2

Ormiston 1857 5026 2.7

Redland Bay 2685 7474 2.8Thorneside 1472 3546 2.4

0 0.5 1 1.5 2 2.5 3 3.5

Average No. Persons

Separate House

Semi-detached

Other Dwellings

All Dwellings

Redland Shire Dwelling Occupancy by Dwelling Type

1986 1991 1996



Suburb 2001 Mainland Dwellings

2001 Mainland Population

Persons / Dwelling

Thornlands 2337 8231 3.5

Victoria Point 3851 11949 3.1

Wellington Point 3010 8486 2.8

Total 37347 111948 3.0

Figure 3.1.7 suggests a theoretical occupancy ratio of approximately 3.0 persons /dwelling for the mainland parts of theShire. These figures are not however based on a complete count of all actual dwellings3 and are distorted to some extent by the absence of Island dwellings that traditionally have been characterised by low average occupancy levels. On the basis of the preceding considerations and Shire-wide trends of marginal occupancy decline since 1996, an average dwellingoccupancy of 2.7 persons / dwelling has been assumed for planning purposes.

3.2 Residential Activity

Dwelling activity provides an indication of residential demand and associated levels of urban residential growth. Dwelling approvals between 1991-92 and 1999-2000 are illustrated in Figure 3.2.1.

Figure 3.2.1 indicates that following high levels of activity in the early 1990’s, total dwelling approvals declined from a high of 1909 dwellings in 1992-1993 to a low of 1315 dwellings in 1997-1998. Since that time activity levels have resumed morecharacteristic levels with a total of 1585 dwellings being approved in 1999-2000.

3They do not for instance include multiple dwelling units that have not been strata titled among others.

0200400600800

100012001400160018002000

No.

App

rova

ls

1991-92

1992-93

1993-94

1994-95

1995-96

1996-97

1997-98

1998-99

1999-00

Year

Houses Other Total



3.3 Residential Land Supply

3.3.1 Broadhectare Land Supply

The Redland Shire Broadhectare Study 4, completed in June 2000, provides a measure of future residential supply and residential activity 5. Broadhectare analysis categorises land as either “Urban Residential”6 or “Lower Density Residential” 7.As at June 2000, broadhectare land identified potentially available for urban or low density residential purposes totalled 925 hectares.

This was comprised of 775 hectares available for urban residential use and 150 hectares available for Lower Density Residential use. Figure 3.3.1 summarises available broadhectare land stocks as at June 2000.

Figure 3.3.1 – Broadhectare Land Stocks (hectares)– Redland Shire 2000

Time Frame Urban Residential Lower Density Residential Total0-2 years 129 0 1292-5 years 375 60 4355-10 years 271 90 36110+ years 0 0 0Total 775 150 925Source: Queensland Government (2000) Redland Shire Broadhectare Study, Planning Information and Forecasting Unit, Brisbane.

The distribution of available land stock by suburb is summarised in Figure 3.3.2

Figure 3.3.2 – Redland Shire Broadhectare Stock by Statistical Local Area (hectares)SLA Total Urban Land Stock Total Low Density

Residential Land StockCombined Total

Alexandra Hills 4 0 4Birkdale 64 0 64Capalaba 10 15 25Cleveland 32 0 32Ormiston 22 0 22Redland Bay 319 4 323Sheldon-Mt Cotton 0 0 0Thorneside 2 0 2Thornlands 194 110 304Victoria Point 66 21 87Wellington Point 57 0 57Redland (S) Balance 5 0 5Total 775 150 925Source: Queensland Government (2000) Redland Shire Broadhectare Study, Planning Information and Forecasting Unit, Brisbane.

4Queensland Government (2000) Redland Shire Broadhectare Study, Planning Information and Forecasting Unit, Brisbane.

5Broadhectare land is that considered suitable, available and intended to be serviced for residential use. This land may be zoned for residential, rural or

other purposes provided that the Strategic Plan intent is urban.6

Land typically yielding between 4 to 16 residential dwellings per hectare7

Land yielding from 0.2 to 4 dwellings or lots per hectare depending on minimum allotments sizes under the relevant Planning Scheme. Lower density residential development is generally known as “rural residential” and is not provided with reticulated sewerage services.



As can be seen as at June 2000, the highest broadhectare land supply is evident in the southern mainland growth areas of Redland Bay, Thornlands and to a lesser extent Victoria Point. This highlights the role of this area as the Shires primary urban development growth front.

A comparison of broadhectare land stocks between 1996 and 2000 indicates that Urban Residential land stocks haveincreased from 658 hectares to 775 hectares, an increase of 117 hectares over the period. Conversely Lower Density Residential land supply has decreased significantly from approximately 650 hectares to 150 hectares between 1996 and 2000.

3.3.2 Broadhectare Land Consumption

Changes to Broadhectare land supply occur through the consumption of land stocks through subdivisional activity, the more specific identification of constraints affecting development and/or amendments to the Planning Scheme which affect land supply. Figure 3.3.3 illustrates the subdivisional activity of parcels less than 5 hectares in area in Redland Shire between January 1996 and December 1999.

Figure 3.3.3 – Redland Shire – Subdivision Activity by Land Parcel Size Jan 1996 – Dec 1999

Lot Size No. Lots Area (Hectares)0-249m2 134 0.50250-399m2 69 2.39400-599m2 275 13.48600-999m2 2045 148.661000-1999m2 246 33.282000-3999m2 113 29.944000-9999m2 162 101.2410,000-19,999m2 561 219.4820,000-50,000m2 43 139.9950,000 + m2 44 852.55Total 3648 688.96

As indicated in Figure 3.3.3, a total of 3648 allotments with a combined area of 688.96 hectares were created between 1996 and 2000. The majority of allotment production was in the 600m2 to 999m2 category with a total of 2045 allotments created, followed by the 400-599m2 grouping within which 275 allotments were created.

If the production of allotments between 400-1999m2 is taken as a surrogate measure of conventional urban allotment demand, it can be seen that a total of 2566 allotments at an average of 642 allotments per annum were produced during the 1996 – 1999 period.



3.4 Future Residential Growth

3.4.1 Future Population Growth

Redland Shire is expected to experience sustained population over the planning period, with the total Shire population growing from 118,021 persons in 2001 to 168 805persons by 2016.

Notwithstanding the locational and capacity choices made by Council as part of the land use option assessment and selection process, the vast majority of population growth will be accommodated in the mainland areas of the Shire, with the mainland population projected to increase from 111,756 persons in 2001 to 157112persons in 2016.

Figures 3.4.1 and 3.4.2 indicate the annual growth in Shire population over the planning period.

Figure 3.4.1 – Redland Shire – Projected Population Growth 2001 -2016

Year Shire Projected Population Mainland Projected Population

1996 103082 97811

2000 115051 109044

2001 118218 111756

2002 121533 114392

2003 125030 117206

2004 128586 120164

2005 132221 123321

2006 135906 126675

2007 139551 130081

2008 143037 133347

2009 146551 136603

2010 150092 1397942011 153165 142489

2012 156207 145229

2013 159383 148163

2014 162569 1511552015 165769 154200

2016 168805 157112



Figure 3.4.2 – Redland Shire – Projected Population Growth 2001 -2016

3.4.2 Residential Population Capacity

As part of investigations to identify future residential land requirements, a capacity analysis of existing residential areas within the Shire was undertaken. This analysis was intended to supplement existing broadhectare investigations undertaken by the Planning Information & Forecasting Unit (PIFU) of the Department of Local Government and Planning (PIFU). The PIFU capacity analysis is confined to undeveloped land above 0.8 hectares in area, and accordingly does not reveal potential and unrealised capacity of lands under 0.8 hectares in area.

The assessment of actual capacity for planning purposes relies on the accurate identification of:

! Residential Land Availability! Assumed Residential Density! Dwelling Occupancy

1. Land Available for Future Residential Development

Broadhectare assessments of land availability in the Shire are limited to the identification of lands above 0.8 hectares in area. The assessment of practical capacity sought to undertake a “fine grain” analysis of land availability corresponding with the following minimum allotment sizes for land included under the residential preferred dominant land use categories of the present Strategic Plan.

Preferred Dominant Land Use Category Allotment Size for Capacity Calculation PurposesMedium Density Residential 800mUrban Residential 2000mResidential Low Density 8000mPark Residential 8000mSpecial Planning Intents All

The analysis identified available lands by Strategic Plan preferred dominant land use categories for all mainland suburbs.

Total Redland Shire Population Projections 2000 - 2016

020000400006000080000

100000120000140000160000180000

20002001

20022003

20042005

20062007

20082009

20102011

20122013

20142015

2016



2. Assumed Density

The calculation of population capacity was based on an evaluation of actual densities achieved under a series of recent development scenarios within the Shire. This permitted achieved density calculations to be derived for each preferred dominant land use category. For capacity calculation purposes the following dwelling/hectare density assumptions were derived:

Preferred Dominant Land Use Category Dwelling/hectare density assumptions for Capacity Calculation Purposes

Medium Density Residential 44.1Urban Residential 10.2Residential Low Density 3.9Park Residential 1.4Specific Planning Intent 1 10.9Specific Planning Intent 2 0.0Specific Planning Intent 3 5.7Specific Planning Intent 4 1.2Specific Planning Intent 5 8.3Specific Planning Intent 6 9.9

3. Dwelling Occupancy

In accordance with the findings of section 3.1.2, a dwelling occupancy ratio of 1.8 persons/multiple dwelling and 3persons /dwelling (urban residential, residential low density, park residential and Specific Planning Intents) has been assumed for planning purposes.

4. Capacity Analysis FindingsFigure 3.4.3 illustrates the results of the residential capacity analysis for the Shire.



Figure 3.4.3 - Redland Shire Population Capacity - Mainland Sliding Area Analysis Approach

Suburb PDLU Designation Total Area (ha) Population Increase Capacity Population

Alex Hills 28.534 782 19146

Birkdale 79.360 2921 16224

Capalaba 150.821 2594 20546

Cleveland 69.808 3245 16596

Mount Cotton/Sheldon 99.154 1761 6027

Ormiston 41.395 1337 6363

Redland Bay 295.201 8313 15787

Thorneside 8.003 341 3887

Thornlands 429.334 6826 15057

Victoria Point 155.185 4109 16058

Wellington Point 108.962 4430 12916

Mainland Capacity Figure: 1466 36659 148607

North Stradbroke Island 3095

Southern Moreton Bay Islands (assumed) 11845

Coochiemudlo Island 700

Redland (S) Bal. Population 2016 15640

The following conclusions may drawn from the Residential Capacity Analysis for the mainland areas of the Shire:

! Redland Shire is expected to experience sustained population growth over the planning period, with the total Shire population growing increasing to 168 805 persons by 2016. As the dominant component of overall Shire growth, the mainland population is projected to grow 157,112 persons by 2016.

! Lands designated for residential purposes under the existing Strategic Plan preferred land use allocations on the mainland have a total population capacity of 148 607 persons based on achieved density;



! On the basis of maximum permitted density 8 the population capacity increases significantly to 160 034 persons;

! Based on current growth rates and assuming no augmentation of the current land supply outside of areas presently designated for urban uses, it is estimated that spare residential land capacity will be exhausted by late 2012 or earlier, based on current trends;

! Based on a projected mainland population of 157 112 persons by 2016, further land supply or density allocations sufficient to accommodate an additional 8 505 persons will be required during the planning period.

3.5 Residential Design & Character

A key component of the Shire’s Community Planning process involved addressing those elements critical to community character and lifestyle. A range of issues related to the design and character of residential development were identified as critical to the maintenance of Shire character and lifestyle values. Issues of residential design and character relevant to the preparation of the Planning Scheme may be summarised as follows:

3.5.1 Residential & Community Character

Historically, Redland Shire consisted of small rural communities clustered around small centres such as Redland Bay, Victoria Point, Cleveland and Wellington Point. Residents of these areas identified clearly with these centres. Increased population growth levels has however caused much of the urban fabric of the Shire to meld together with much individual identity of alternative localities within the Shire being lost or modified significantly.

A key finding of the Shire’s community planning process was that many Shire residents believed residential areas lacked individual character and identity 9, with many areas displaying a homogeneous character typical of the outer sprawlingsuburbs of Brisbane. It was also questioned whether in the future, the maintenance of residential character will become an issue the “villages” versus the “suburban estates”. In this respect, the need to retain “sense of place” and to fostercommunity identity was seen as a critical planning outcome for the Shire.

In an attempt to reverse or stem the melding or joining of communities, the 1998 Strategic Plan as a result of the Vision 2005 process tried to focus (in a land use sense) on the building of local communities and preserving their individual sense of place and character. This was to be achieved by encouraging a desired urban settlement form that incorporated physical breaks, land use controls or appropriate building design. This aim has been achieved with varying levels of success throughout the Shire. Further work is however required with the refinement of controls at a local and finer grade level.

It is also apparent that Special Planning Intent areas, one of the key mechanisms used to secure breaks betweencommunities, have proved to be ineffective. This has however primarily arisen from the structure, approach and lack of clarity inherent in the controls concerned. While the need to promote and achieve breaks between community’s remains apparent, the vehicle by which this is achieved under the new Planning Scheme requires careful consideration. A clear articulation of non-urban planning intent supported by more conventional land use controls (eg. the use of rural, open space designations, subdivision controls etc) is likely to provide a more certain land use outcome in such areas. Special Planning

8In accordance with the density standards applying under the Redland Shire Planning Scheme

9 It is interesting to note that in the Community Attitude Survey 1999, Council’s corporate objective of maintaining individual and identifiable residential communities within the Shire, was regarded by 64% of respondents as an important objective.



intent areas that no longer achieve their intended purpose could be considered under alternative land use scenarios,particularly given the constraints on augmenting broadhectare land supply over the planning period.

3.5.2 Energy Efficiency & Climatically Conscious Design

The population growth pressures being experienced within the Shire has not only resulted in a change in the pattern of urban development but has also resulted in a change in the range and style of housing types.

Traditionally the housing stock consisted largely of single detached dwellings that were constructed of wooden materials in the typical Queenslander architectural vernacular. The dwellings included verandahs, eaves and were responsive to the sub-tropical climate.

The built environment of the Shire is still defined largely by low – rise development. Construction materials have however changed from light – weight building materials to masonry and brick. There has also been a departure from dwellings with open verandahs to standard dwellings with smaller outdoor living areas and a lack of eaves that are not responsive or sympathetic to the sub-tropical coastal climate.

Further, the architectural style and treatment of many dwellings is not open or inviting from the street, but tends to be inward looking. This has obvious implications for the identity, sense of community and quality of life for new and developing urban areas. In many cases dwellings shut out the street because the car dominates the street. The continued construction of these housing types which also ignore solar orientation leads to a higher energy demand for heating and cooling, with such dwellings achieving lower rates of energy efficiency.

A key objective of the new planning Scheme is to incorporate detailed design and housing controls which seek to promote residential design which is climatically conscious and energy efficient.

3.5.3 Housing Choice & Affordability

Residential development within the Shire has been traditionally characterised by the predominance of single unit detached dwellings10. This has contributed to a predominately low-density development pattern, particularly in the coastal areas of the Shire.

Notwithstanding the dominance of single unit detached development, an increasing proportion of the population is being accommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996. This suggests increased availability and popularity of non-detached housing forms11. This trend towards multiple dwellings is expected to continue as a result of changing demographic structures, particularly the aging of the population and the correspondingreduction in average household size.

Given changing demographic trends and gradual diminution in the residential land supply, it is essential that the new Planning Scheme actively promote a range of housing types to improve both housing choice and affordability. The provisionof a wider range of housing types comprises a key component of associated strategies aimed at increasing residential densities in appropriate locations. Such strategies assume high significance as the available broadhectare residential landsupply is diminished.

10The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996 accounted for 78.09 % of the Shires

total dwelling stock.11

Includes dual occupancy, units, townhouses and other medium density housing forms



3.5.4 Residential Density

The density of residential development has a key bearing on:

! the capacity of remaining residential areas to accommodate population growth;! the level of accessibility enjoyed by residents to a range of services and facilities;! the viability of the public transport system;! the efficiency of the urban form;! the efficient provision of infrastructure (eg. water, sewerage, roads);! the level of housing variety choice;! the vibrancy, vitality and character of centres and associated places of social interaction;! the overall impact of urban development on natural and landscape values.

In optimising planning outcomes associated with the above matters, and in effectively responding to anticipate populationgrowth over the planning period, the issue of residential density looms as the primary residential policy issue. Theperpetuation of low-density residential development patterns in an environment of constrained land supply is no longersustainable. Clearly the allocation of additional land for medium density residential development is required under the new Planning Scheme to ensure sustainable residential capacity, efficiency, choice, character and environmental outcomes are achieved.

3.5.5 Heritage Protection

The protection residential heritage values also comprises a key element of the Shires approach to the maintenance of residential character. Planning Scheme approaches to the protection of residential places of cultural or heritage significance need to be based on:

1. The accurate identification of dwelling/sites of cultural or heritage significance;2. Definition of the elements and attributes worthy of conservation and/or protection, and the means by which this is best

achieved;3. The identification or appropriate approval and assessment processes for places of cultural/heritage significance; and4. The codification of design and development standards to protect areas/sites of residential character significance.

Issues of heritage protection are addressed in more detail under the Cultural Heritage Position Paper.

3.6 State Agency Interests

State Agency interests with respect to Residential Development are summarised under the South East Queensland Regional Framework For Growth Management (RFGM).

The RFGM identifies the key residential development State Interests as follows:

1. Residential development should provide for a variety of housing types and densities that takes account of demographic and socio-economic characteristics.

2. Residential densities should be increased in existing and new areas, particularly around major centres, railway stations, stops on high capacity transit routes and other transport interchanges.

3. Residential development should be based on patterns of settlement which:



! promote use of existing infrastructure;! promote development, redevelopment and infill of existing and committed residential areas; and! discourage premature urban designations and oversupply of residential land.

4. New residential areas should be located in areas with high accessibility to efficient public transport services, or where such services can be relatively easily provided.

5. The bulk of new residential development should occur as part of an existing or new neighbourhood of sufficient population size to allow for the development of local community facilities.

6. Affordable housing and land should be distributed throughout the region to match community needs and be well located in relation to open space, recreation, services and employment densities and living environments

State Interests are facilitated through the identification of a range of priority policy actions. Preparation of the new Planning Scheme needs to have regard to identified actions.



4 Planning ImplicationsPlanning implications relevant to future residential development within Redland Shire include the following:

Dwelling Structure

! Between 1986 and 1996 while the resident population of Redland Shire increased from 60,231 persons to 103,082, the Shire also experienced an increase in total dwellings from 20,920 to 37,996.

! Despite the absolute increase in overall dwelling numbers, declining dwelling occupancy reflects broader trends ofshrinking household size coupled with the inherent ageing of the Shires population.

! The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996accounted for 78.09 % of the Shires total dwelling stock. This is indicative of the low-density development trends that have typified residential development in the Shire.

! An increasing proportion of the population is being accommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996

Dwelling Occupancy

! On a Shire-wide basis average occupancy levels have tended to decline from 3.1% in 1986 to 2.8 in 1996. Reductionsin occupancy have been confined to the separate house and other dwelling category, while semi-detached dwellings have maintained stable occupancy levels of 1.8 persons per dwelling since 1986.

! On the basis of preceding considerations, a dwelling occupancy ratio of 1.8 persons/multiple dwelling and 2.7 persons /dwelling (urban residential, residential low density, park residential and Specific Planning Intents) has been assumed for planning purposes..

Residential Activity

! Following high levels of activity in the early 1990’s, total dwelling approvals declined from a high of 1909 dwellings in 1992-1993 to a low of 1315 dwellings in 1997-1998. Since that time activity levels have resumed more characteristic levels with a total of 1585 dwellings being approved in 1999-2000.

Residential Land Supply

! As at June 2000, broadhectare land identified potentially available for urban or low density residential purposes totalled 925 hectares. This was comprised of 775 hectares available for urban residential use and 150 hectares available for Lower Density Residential use.

! The highest broadhectare land supply is evident in the southern mainland growth areas of Redland Bay, Thornlands and to a lesser extent Victoria Point. This highlights the role of this area as the Shires primary urban development growth front.

! A comparison of broadhectare land stocks between 1996 and 2000 indicates that Urban Residential land stocks have increased from 658 hectares to 775 hectares, an increase of 117 hectares over the period. Conversely Lower Density



Residential land supply has decreased significantly from approximately 650 hectares to 150 hectares between 1996and 2000.

Land Consumption

! A total of 3648 allotments with a combined area of 688.96 hectares were created between 1996 and 2000. The majority of allotment production was in the 600m2 to 999m2 category with a total of 2045 allotments created, followed by the 400-599m2 grouping within which 275 allotments were created.

! If the production of allotments between 400-1999m2 is taken as a surrogate measure of conventional urban allotment demand, it can be seen that a total of 2566 allotments at an average of 642 allotments per annum were produced during the 1996 – 1999 period.

Future Population Growth

! Redland Shire is expected to experience sustained population over the planning period, with the total Shire population growing from 118 021 persons in 2001 to 168 805 persons by 2016.

! Notwithstanding the locational and capacity choices made by Council as part of the land use option assessment and selection process, the vast majority of population growth will be accommodated in the mainland areas of the Shire, with the mainland population projected to increase from 111 756947 persons in 2001 to 157 112299 persons in 2016.

Population Capacity

! Redland Shire is expected to experience sustained population growth over the planning period, with the total Shirepopulation growing increasing to 168 805 persons by 2016. As the dominant component of overall Shire growth, the mainland population is projected to grow 157,112 persons by 2016.

! Lands designated for residential purposes under the existing Strategic Plan preferred land use allocations on the mainland have a total population capacity of 148 607 persons based on achieved density;

! On the basis of maximum permitted density 12 the population capacity increases significantly to 160 034 persons;

! Based on current growth rates and assuming no augmentation of the current land supply outside of areas presently designated for urban uses, it is estimated that spare residential land capacity will be exhausted by late 2012 or earlier, based on current trends;

! Based on a projected mainland population of 157 112299 persons by 2016, further land supply or density allocations sufficient to accommodate an additional 8 505 persons will be required during the planning period.

Residential & Community Character

! A need exists to encourage a desired urban settlement form that incorporates physical breaks, land use controls and appropriate building design. This aim has been achieved with varying levels of success throughout the Shire. Further work is however required with the refinement of controls at a local and finer grade level.

12In accordance with the density standards applying under the Redland Shire Planning Scheme



! the need to retain “sense of place” and to foster community identity was seen as a critical planning outcome for the Shire under the new Planning Scheme.

Energy Efficiency & Climatically Conscious Design

! A key objective of the new planning Scheme is to incorporate detailed design and housing controls which seek topromote residential design which is climatically conscious and energy efficient. This is also a critical element inprotecting some of the unique character attributes of the Shire’s residential housing stock.

Housing Choice & Affordability

! Given changing demographic trends and gradual diminution in the residential land supply, it is essential that the new Planning Scheme actively promote a range of housing types to improve both housing choice and affordability. Theprovision of a wider range of housing types comprises a key component of associated strategies aimed at increasing residential densities in appropriate locations. Such strategies assume high significance as the available broadhectare residential land supply is diminished.

Residential Density

! The perpetuation of low-density residential development patterns in an environment of constrained land supply is nolonger sustainable.

! The allocation of additional land for medium density residential development is required under the new PlanningScheme to ensure sustainable residential capacity, efficiency, choice, character and environmental outcomes areachieved.

Heritage Protection

! The protection residential heritage values also comprises a key element of the Shires approach to the maintenance of residential character. Planning Scheme approaches to the protection of residential places of cultural or heritage significance need to be based on:

! The accurate identification of dwelling/sites of cultural or heritage significance;! Definition of the elements and attributes worthy of conservation and/or protection, and the means by which

this is best achieved;! The identification or appropriate approval and assessment processes for places of cultural/heritage

significance; and! The codification of design and development standards to protect areas/sites of residential character

significance.



5 Planning Strategy Areas

5.1 Urban Efficiency

Urban efficiency refers to the need to facilitate efficient urban development patterns that promote urban consolidation and seek to minimise urban sprawl. Implicit in this concept is the need to increase residential densities in defined localities to promote efficient infrastructure provision and utilisation. Efficient urban patterns minimise the ecological footprint of urban development thereby minimising urban related habitat disturbance and associated adverse impacts on the natural environment.

5.2 Residential Land Supply

Provision of an adequate and suitably located supply of land to accommodate residential growth is a key deliverable of the new Planning Scheme. Clearly in a climate of constrained resident land supply the approaches employed in augmenting present land stocks will need to include close scrutiny of density and residential design standards. This will include the nomination of future residential growth areas capable of accommodating an appropriate portion of anticipated population growth.

5.3 Residential Density

Residential density or the intensity of residential development is closely related to the issues of urban efficiency and residential land supply. The allocation of residential density including the implementation of transit orientated developmentprinciples, will comprise an important element of the Shire’s future urban residential growth strategy. Increasing densities is favoured as a means of achieving a range of sustainable urban outcomes, while minimising the potential for adverse environmental impacts typically associated with the inefficient urban patterns. This may be achieved by offering incentives to encourage developers to locate higher density housing in close proximity to transport and services,

5.4 Residential Choice & Affordability

In effectively providing for the future residential needs of the community, the Planning Scheme needs to facilitate the provision of a range of housing types suitable for all stages in the life cycle and available to all socio-economic groups.Residential choice will also play and important role in urban efficiency and density related initiatives.

5.5 Residential Design

This involves strategies that ensure that a high standard of architectural merit, energy efficiency and climatically conscious design is incumbent in the design of new residential development. It also involves the need to consider a persons right to adapt a house design to reflect lifestyle needs.

5.6 Residential Amenity

Future residential development must be designed, located and developed in a manner enhances the pleasantness and liveability of the residential environment.



5.7 Character Protection

Future development must remain mindful of the need to protect residential heritage and character values. Intrinsic to the protection of urban character is the need retain “sense of place” and community character, and to avoid homogeneous and monotonous residential development.



6 References

1. Australian Bureau of Statistics (1998) Brisbane: A Social Atlas, Commonwealth of Australia, Canberra.

2. Commonwealth Government of Australia (2000) “Welcome to the Australian Bureau of Statistics”,URL:http://www.abs.gov.au.

3. Department of Natural Resources, Department of Local Government & Planning, QLD (1997) Planning Guidelines Separating Agricultural & Residential Land Users Department of Natural Resources, Department of Local Government & Planning, QLD Government, QLD.

4. Qld Government (2000) State Planning Policy 1/00 Planning & Management of Coastal Development Involving Acid Sulfate Soils Department of Communication & Information, Local Government, Planning & Sport, Department of Natural Resources, QLD.

5. Queensland Government (1997) State Planning Policy 1/97: Conservation of Koalas in the Koala Coast, Queensland Government, Queensland.

6. Queensland Government (1998) 1996 Census Report Queensland, Department of Local Government and Planning, Queensland.

7. Queensland Government (1998) Population Projections for Queensland, 1998 Edition, Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland.

8. Queensland Government (1999) Household Projections for Queensland, 1999 Edition, Department of Communication and Information, Local Government and Planning, Queensland.

9. Queensland Government (1999) Recent Population and Housing Trends in Queensland Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland.

10. Queensland Government (2000) Housing Update: Queensland Dwelling Approvals to June Quarter 2000, Planning Information and Forecasting Unit, Department of Local Government and Planning, Queensland.

11. Queensland Government (2000) Recent Population and Housing Trends in Queensland Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland.

12. Queensland Government (2000) Redland Shire, 2000 Edition: A Measure of Future Residential Land Supply,Department of Communication and Information, Local Government, Planning and Sport, Planning Information and Forecasting Unit, Queensland.

13. Queensland Government (2000) Regional Economic Report: Redland Shire, Queensland Treasury,; Queensland.

14. Queensland Government Background Information: Aged and Special Needs Accommodation, Queensland Government; Queensland.

15. Queensland Government, Office of Economic & Statistical Research “Community Profiles – Redland Shire”



16. URL:http://www.oesr.qld.gov.au/data/publications/community_cab/redlands/rer_redland.htm

17. Redland Shire Council (1995) Multiple Dwelling Development Survey, Planning & Environmental Services Program,November 1995, Redland Shire Council, Queensland.

18. Redland Shire Council (1996) Development Coastal Plan 3 : Point Lookout Redland Shire Council & Qld Department of Lands, QLD.

19. Redland Shire Council (1997) Strategic Plan Review: Planning Study Redland Shire Council, Queensland.

20. Redland Shire Council (1998) Design Standards for Developments, Redland Shire Council, Queensland.

21. Redland Shire Council (1998) Town Planning Scheme for the Shire Queensland Government, Queensland.

22. Redland Shire Council (1999) CD-ROM Redlands Heritage Study , Woods Bagot, Queensland.

23. Redland Shire Council (2000) North Stradbroke Island/Minjerribah Planning and Management Study: Draft Policies/Statement of Proposals for the Preparation of a Planning Scheme for North Stradbroke Island/Minjerribah, August 2000 Elliot Whiteing and Associates, Brisbane.

24. Redland Shire Council (2000) Aged Persons Accommodation Housing Strategy (including those with special needs),Redland Shire Council, Queensland.

25. Redland Shire Council (2000) Community Attitude Survey – Final Report : Redland Shire Council AC Neilsen, Brisbane.

26. Redland Shire Council (2000) Draft Redland Shire Community Plan Redland Shire Council, Queensland.

27. Redland Shire Council (2001) Transitional Planning Scheme Policy : Impact of Transportation Systems on Urban Amenity Redland Shire Council, QLD

28. Redland Shire Council (2001) Cleveland Town Centre : Streetscape Design Guideline Manual Redland Shire Council, QLD.

29. Redland Shire Council (2001) Community Satisfaction: Benchmarking Survey Redland Shire Council, Queensland.

30. Redland Shire Council (2001) Explanatory Statement : Transitional Planning Scheme Policy – Residential Code for Multiple Dwelling Development 2001 Redland Shire Council, QLD.

31. Redland Shire Council (2001) Vision 2005 & Beyond : Redland Draft Community Plan Redland Shire Council, Queensland.

32. Redland Shire Council Policy Documents : Adaptable Housing Environment, Plan & Develop Redland Shire Council, Queensland.

33. Redland Shire Council Policy Statement: Environmental Change Acquisition Policy, Redland Shire Council, Queensland.



34. Redland Shire Council Policy Statement: Habitat Significance Areas, Redland Shire Council, Queensland.

35. Redland Shire Council, Redland Community Economic Development Board (1996) Final Economic Profile of Redland Shire – An Input into the Redland Shire Strategic Plan Review, Abrett Consulting, Brisbane.

36. Redland Shire Council, Redland Community Economic Development Board (1996) Target Opportunities in Business and Industry Development and Future Employment Growth in Redland Shire, Abrett Consulting, Brisbane.

37. Redland Shire Council, Redland Community Economic Development Board (1996) Regional & Sub-RegionalConstraints and Opportunities for Business and Industry Development in Redland Shire – Final Report, Abrett Consulting, Brisbane.

38. Redlands District Committee on the Aging Inc. (2000) Social Activity Participation by Senior Australians RDCota, Queensland.

39. Robinson, D (2001) Preliminary Investigation into the Provision of a Business Incubator Facility and Associated Services in the Redland Shire Queensland.

40. South-East Queensland Regional Organisation of Councils (2001) Report to SEQROC on the Mayoral Delegation to the Minister for Environment, South-East Queensland Regional Organisation of Councils, Brisbane.

41. Tourism Queensland (2000) Moreton bay Marine Tourism Product Audit and Development Review: Tourism Assessment National Centre for Tourism.

42. Wong C, Lloyd K, Jenkington A, Fletcher P & Crowe A (2001) Social Isolation Report RDCota, Queensland.

43. Wood J, Thompson D & Erickson M (1992) Redland Shire: Open Space, Recreation, Conservation & Tourism Strategy ,Loder & Bailey Consulting Group, Brisbane.