Planning Proposal for Land at West Dapto - Wollongong City ... · Planning Proposal for Land at...

Planning Proposal for Land at West Dapto

To rezone land between Bong Bong Road and Cleveland Road for residential development Prepared for: Stockland Residential Development Project No: 7433B Date: December 2011

Planning Proposal West Dapto

11 Dartford Road Thornleigh NSW 2120 ABN 24 551 441 566

PO Box 230 Pennant Hills NSW 1715 DX 4721 Pennant Hills NSW

t: 02 9980 6933 f: 02 9980 6217 e: [email protected]

www.donfoxplanning.com.au

Printed: 5 December 2011 File Name: P:\PROJECTS\7433B West Dapto Urban Design\Reports\7433B.doc Project Manager: David Kettle Client: Stockland Residential Development Project Number: 7433B Document history and status

Version Issued To Qty Date Reviewed Draft Project Manager 1 22/11/2011 David Kettle

Draft Client 1-e 30/11/2011 Roger Gain

Final Client 1-e 5/12/2011 David Kettle


Don Fox Planning | 5 December 2011 P:\PROJECTS\7433B West Dapto Urban Design\Reports\7433B.doc

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Table of Contents

1 Introduction 1

1.1 Commission 1

1.2 Background 1

2 The Subject Site 2

2.1 Site Area and Dimensions 2

2.2 Site Description 3

2.3 Surrounding Area 3

2.4 Existing Infrastructure 3

3 Current zoning 4

4 The Proposal 4

4.1 Zoning 4

4.2 Lot size 4

4.3 Adjoining sites 4

5 Benefits of a Planning Proposal 4

5.1 Illawarra Urban Development Program targets (IUDP) 4

5.2 Bong Bong Town Centre 5

5.3 Servicing and infrastructure 6

5.3.1 Water management 6

5.3.2 Access 7

5.3.3 Servicing / Infrastructure Delivery 8

5.4 Funding of infrastructure 9

6 A Guide to Preparing Planning Proposals 9

6.1 Objectives or Intended Outcomes 9

6.2 Part 2 – Explanation of Provisions 9

6.3 Part 3 – Justification 10

6.3.1 Need for the Planning Proposal 10

6.3.2 Relationship to strategic planning framework 11

6.3.3 Environmental, Social and Economic Impact 18

6.3.4 State and Commonwealth Interests 18

6.3.5 Community Consultation 19

7 Conclusion 19



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Tables

1. Consistency with Illawarra Regional Strategy 2006-2031

2. Consistency with environmental planning instruments

3. Consistency with applicable section 117 directions

Appendices

A. Subject site

B. Location of existing infrastructure

C. Proposed staging

D. West Dapto Masterplan



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1 Introduction

1.1 Commission Don Fox Planning (DFP) has been commissioned by Stockland Residential Development (Stockland) to prepare a report to demonstrate the case for rezoning land between Bong Bong Road and Cleveland Road, West Dapto to allow residential development. The report has been prepared to assist Council in the preparation of a Planning Proposal to the Department of Planning and Infrastructure.

The land in question has been the subject of a number of studies and has already been earmarked for residential development, although deferred from the initial release.

Stockland owns a large area of land included in this Planning Proposal, with the remaining land owned by five separate parties and Wollongong City Council. The land adjoins a site already zoned for residential development and for which a development application has been approved. Stockland has commenced subdivision works under that consent. The site also adjoins the proposed Bong Bong town centre and Stockland is in discussions with the owner of that site, which has already been rezoned, with a view to progressing development in the surrounding area.

This Planning Proposal has been prepared to satisfy the requirements of the Department of Planning’s A Guide to Preparing Planning Proposals.

A Guide to Preparing Planning Proposals specifies that a Planning Proposal should comprise four parts as follows:

• Part 1 – A statement of the objectives or intended outcomes of the proposed Local Environmental Plan (LEP).

• Part 2 – An explanation of the provisions that are to be included in the proposed LEP.

• Part 3 – A justification for the objectives, outcomes and provisions proposed in the LEP and the process for their implementation.

• Part 4 – Details of the community consultation that is to be undertaken on a Planning Proposal.

Each of these parts will be addressed in this report.

1.2 Background When the draft Local Environmental Plan (LEP) for West Dapto was exhibited the whole of the release area was proposed to be rezoned. The Administrators for Wollongong City Council (Council) raised concerns regarding a number of matters including the viability and affordability of the release area, costs and timing and provision of infrastructure, access, flooding, riparian corridors and staging. The Council subsequently requested the Growth Centres Commission (GCC) to review the draft LEP and supporting documents having regard to the above matters.

The GCC generally supported the rezoning of the release area subject to a number of modifications. Most significantly, this included confining the rezoning of land to Stages 1 and 2 and deferring the remaining lands. The GCC also recommended that the deferred lands be guided by a structure plan to be prepared for future stages. Importantly, the GCC also considered the possibility of “out of sequencing release” and in this regard noted that:

“Should particular landowners/developers wish to proceed with zoning and development in advance of the staging recommended in this report, such proposals should be considered but only on the basis of no cost to Government (State and Local) in terms of planning and infrastructure provision.”



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The West Dapto Infrastructure Statement, September 2007 prepared by the Department of Planning similarly notes that the staging plan provides opportunities to bring additional stages or out of sequence development on line if additional housing supply is required or if precinct acceleration criteria contained in the plan can be satisfied.

The boundary between Stages 2 and 3 appears to be arbitrary and from a planning perspective should have taken into account topography and in particular drainage catchments which are an important element in the development of Greenfield land. The Staging boundaries should also have taken into account the location of the future town centre which is situated on the edge of the Stage 2 and 3 boundary and the boundary seemingly does not take into account the need for development in Stage 3 to support the future town centre.

There are sound strategic reasons for Council to consider the release and rezoning of a large portion of the Cleveland Stage 3 land between Bong Bong Road and Cleveland Road (the subject site) for the reasons as set out in the remainder of this Planning Proposal.

Stockland further proposes to assist with the coordination of the provision of infrastructure, including stormwater, access and services to ensure that residential land is available in a timely fashion in accordance with the adopted release strategy.

2 The Subject Site The subject site is illustrated in Appendix A and comprises approximately 270 hectares of land lying between Bong Bong Road and Cleveland Road, West Dapto. The boundary of the subject site has been determined to support the future Bong Bong town centre, to provide catchment based water management works and to optimise the benefits of upgrading Cleveland Road and other infrastructure. The subject site comprises a combination of Stockland’s land holdings and land owned by others. Stockland has been and is continuing to consult with these land owners. This consultation will continue through the planning proposal process. The property descriptions forming the subject site are:

• Lot 1 DP810104 (Stockland)



• Lot 1 DP730326

• Lot 2 DP730326

• Lot 59 DP1125379

• Lot 1 DP156208

• Lot 1 DP532391

• Lot 200 DP803810

• Lot 3 DP532391 (Wollongong City Council)

• Lot 10 DP235743 (Wollongong City Council)

• Crown roads

2.1 Site Area and Dimensions The site is irregular in shape and is approximately 3.4 kilometres in a north/south direction and 4.5 kilometres in an east/west direction. Of the total of 270 hectares, Stockland owns approximately 114 hectares with the remainder owned by five separate parties and Wollongong City Council.



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2.2 Site Description The topography of the site varies from flat in the eastern parts of the site through undulating in the central parts, with the western parts of the site being steep and extending into the foothills of the Illawarra escarpment. The site is bisected by a number of watercourses generally flowing in an easterly direction from the escarpment.

The eastern parts of the site have been cleared as a result of farming activities, with the exception of a small pocket of vegetation on Lot 200 DP 803810 towards the eastern part of the site. A relatively small proportion of the western, steeper part of the site remains covered in bushland.

There are a number of dwellings scattered throughout the site, together with associated farm buildings, access roads, fences and other farm-related infrastructure.

There are four high voltage (330kV) overhead power lines traversing the site generally in a north to south direction. The Jemena Eastern Gas Pipeline also traverses the eastern part of the site in a north-south direction.

There is a large volume of coal washery reject situated immediately to the west of the proposed Bong Bong town centre.

The site is overlooked by the Illawarra escarpment to the west and from the higher western parts of the site there are extensive views to the east and south-east over Lake Illawarra and extending to the Pacific Ocean.

2.3 Surrounding Area East: Beyond the site to the east is the Illawarra Railway Line and Dapto suburb.

North East: The suburb of Horsley lies to the north-east of the site. Bong Bong Road extends through Horsley and connects to Dapto. The recently approved residential subdivision known as Brooks Reach adjoins the site and has commenced with construction of new housing to commence shortly.

North: The topography and vegetation of the subject site extends to the north beyond Bong Bong Road with the flatter areas between Horsley and the escarpment having been cleared for farming and the western, steeper areas remaining covered in bush.

West: To the west lies the Illawarra escarpment. As described above, the western parts of the site extend in to the foothills of the escarpment.

South: Beyond Cleveland Road to the south lies cleared farmland similar to that of the subject site with scattered dwellings and farm-related infrastructure.

2.4 Existing Infrastructure There is existing infrastructure in the locality that can be extended and augmented to service the subject site. Appendix B depicts the location of the existing infrastructure.

Bong Bong Road is currently being upgraded as part of the Brooks Reach subdivision and these works can be extended to service the subject lands. Cleveland Road also provides access to the site, but will need some upgrading to cope with the increase in traffic resulting from the proposal.

There is existing shopping and community facilities located at Dapto, but these will be inadequate and are poorly located to service the proposed development.

There are two major north/south road links, being the F6 Freeway and the Princes Highway located beyond the eastern boundary of the site and these will be useful in providing access for trips out of the area; e.g. to Wollongong, Shellharbour and beyond. Similarly, the Illawarra Railway Line lies to the east of the site and can provide an excellent transport link beyond the site.



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Local water supply, sewerage, electricity, telephone and gas utilities are available for extension to service the site (refer to Section 5.3.3).

3 Current zoning The subject lands are currently zoned 1 Non-Urban Zone and 7B Environmental Protection Conservation Zone under Wollongong LEP 1990.

4 The Proposal This submission recommends that the Planning Proposal comprise the following three main elements.

4.1 Zoning Stockland proposes that the subject site be rezoned to permit residential development. Appendix A shows the extent of the land and the individual holdings. It can be seen that there are five separate holdings plus land owned by Wollongong City Council in the subject area and that Stockland owns a significant portion of this land, including the area around Bong Bong town centre.

Stockland further proposes to assist with the coordination of the provision of infrastructure, including stormwater, access and services to ensure that residential land is available in a timely fashion in accordance with the adopted release strategy.

We are aware that when the draft LEP was prepared for the whole West Dapto Urban Release Area the Council had prepared draft maps to accompany the written instrument. Whilst the former mapping might require adjustment, the previous work that has already been undertaken can be utilised for the Planning Proposal.

4.2 Lot size We recommend that small lots (300m2) should be considered and included in the Council’s Planning Proposal for residentially zoned land within a 300m radius of the future Bong Bong town centre. This approach will assist in providing greater housing choice and affordable housing options as well as assisting in providing a critical mass to support the future town centre.

We consider that the use of small lots should be incorporated into the Planning Proposal rather than be managed as a separate draft LEP amendment after rezoning, as has occurred for the zoned land in the West Dapto release area.

4.3 Adjoining sites We note that a narrow strip of land in the south of Lot 60 DP1063539 (recently approved DA and owned by Stockland) and Lot 61 DP1065359 (Bong Bong town centre) is zoned 1 Non-urban, despite its inclusion in WLEP 2010. We assume the original zone has been retained pending resolution of drainage designs for the area.

Although the current Planning Proposal does not include this land, we suggest that Council might take the opportunity to include it if it becomes appropriate during the assessment of the Planning Proposal.

5 Benefits of a Planning Proposal

5.1 Illawarra Urban Development Program targets (IUDP) The IUDP published in 2010 has a Greenfield dwelling potential of 6900 for the West Dapto release area, presumably based on Stages 1 and 2 which have been rezoned. However, the development of land within Stages 1 and 2 has been slow, which can be



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attributed to land fragmentation and the associated difficulties of servicing and water management.

Aside from the subdivision DA recently approved over Stockland’s lands for 295 lots, the only other DAs of which we are aware are much smaller rural-residential subdivisions in the north west of the release area. Stockland is the only land developer delivering new lots that can make a meaningful contribution to meet market demand.

Compared to the subject site, Stage 1 and 2 land in the Release Area is in fragmented ownership. The slow response to development of the land might continue for some time given the fragmented ownership, compounding the management of issues such as access, water management, servicing etc and potentially resulting in missed housing supply targets, which is already beginning to become apparent when the IUDP forecasts are considered.

The greenfield dwelling forecast is for 830 dwellings in West Dapto broken down over the following 3 year time frame:

• 160 dwellings in 2010 – 2011

• 310 dwelling in 2011 – 2012 (cumulative 470 dwellings)

• 360 dwellings in 2012 – 2013 (cumulative 830 dwellings)

Given the delays in commencing subdivisions in Stages 1 and 2 of the West Dapto release area, the forecasts in the IUDP are not being met. In terms of the Wollongong LGA this is likely to be compounded with other release areas such as Tallawarra (forecast to provide 210 dwellings over the same time frame) which has not yet obtained approval, further reducing the lot production likely to occur in the near future.

The subject land has at its core a large single land holding controlled by a large public company that can provide solutions to access, servicing and water management. The rezoning of the land will allow increased lot production to compensate for the slow take up in the northern parts of the release area and thereby assist in meeting the housing supply targets.

5.2 Bong Bong Town Centre The rezoning of only Stages 1 and 2 of the West Dapto release area included the future Bong Bong town centre, but also resulted in the developable land terminating at (or in the vicinity of) the town centre. The future town centre is therefore on the fringe of the presently zoned urban area.

The development of a town centre is dependent upon a population threshold within a convenient catchment (noting that existing households in Horsley will already gravitate towards Dapto). The current population of Horsley is approximately 7,200. A major supermarket and specialty shops typically requires a catchment population of at least 9,000 people. Only some of the 7,200 existing residents would travel to a new town centre, with the remainder continuing to gravitate to Dapto.

We understand that the owners of the land on which the town centre is planned are concerned that development of the town centre might not be viable in the immediate future because of the slow rate of development of residential land. This is compounded by the fact that there is no zoned land to west or south of the town centre site reducing the potential to establish a critical mass to support a town centre.

Additional residentially zoned land would provide an increase in population around the town centre. This in turn would allow for the earlier commencement of the town centre which will be beneficial to the success of the release area.



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We comment that if the town centre is not established at an early stage, households will develop shopping habits that may be difficult to break (e.g. travelling to Dapto), thus putting more strain on the road network and resulting in a less environmentally sustainable outcome.

It is commendable that the town centre has been zoned at an early stage but it would greatly assist the viability of the centre if Stage 3 were to be zoned for urban purposes thereby increasing the population within the catchment of the new Bong Bong town centre in order to make the town centre a viable proposition.

5.3 Servicing and infrastructure 5.3.1 Water management

The GCC noted that the West Dapto release area is comprised of 6 different creek catchments. The Cleveland lands are located within the Mullett Creek catchment (with Reid Creek forming part of that catchment), and the GCC noted that flood behaviour in this catchment is well understood.

The GCC also noted that the originally proposed flood control strategy relied on a cut and fill approach that was not supported owing to difficulties in implementation relating to the fragmented ownership and environmental reasons. With the exception of minor cut and fill of up to 0.5m this approach was abandoned.

In its place, the GCC set out an alternate approach comprising a number of elements such as acquisition of certain flood hazard or flood affected land, public and private outcomes, levies and controls over development. In addition, the GCC also recommended the construction of enhanced storage areas and detention basins as follows:

“Construction of Enhanced Storage Areas (ESA) and Detention Basins. This option would provide five ESAs in addition to the 39 detention basins proposed in the URS Study. The ESAs will act to temporarily store floodwater from upper catchment areas during floods, releasing the water at a controlled rate the ESAs are required purely to address the loss of flood plain storage from the limited fill proposal, abandoning wide scale excavation in the catchment, and increased roughness of the riparian corridors.”

Clearly the above approach requires significant investment from developers to create the ESAs and detention basins. We comment that the new approach will continue to be faced with the difficulties of fragmented ownership. Specifically:

• Individual landowners (or developers) who do not control land suitable for a basin will be unable to proceed until one their neighbours with a suitable site has developed;

• The approach will result a large number of individual basins, each with its own engineering and maintenance requirements; and

• It will be much more difficult to ensure that at all times as development proceeds, there will be no adverse flooding or water quality control impacts downstream of the development sites and/or the ultimate configuration of the basins will be inefficient to cope with the interim requirements.

The benefit of the proposal Stockland has put forward is that, as a large land holder (in conjunction with other landowners) Stockland can implement the ESA approach in order to manage flood water and drainage on a catchment basis and can undertake this work to manage impacts.

In addition, the ability to design and construct the water management system in a unified and co-ordinated manner will enable the fewer and larger hard engineering elements of the water management systems to be standardised, resulting in more cost effective and simpler maintenance.



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Further, the unified design and construction of the water management system for the entire catchment will bring forward this essential infrastructure and can be expected to provide a catalyst for development of other land.

5.3.2 Access The GCC reviewed traffic and transport issues focussing on:

• Determining the transport infrastructure required to support the release area;

• Access requirements across the railway line and flood plain as well as connection with the F6 Freeway; and

• Road access during flood events.

The GCC recommended amendments to the access strategy previously prepared. Relevant to this current proposal for the Cleveland land was the recommended upgrading of Bong Bong Road which would reduce disruption by flood impacts by more than 90%. Clearly, the extension of the residential release further west along Bong Bong Road to Stage 3 would make sensible, efficient and better use of the upgrade to Bong Bong Road which will need to occur in any event.

In addition, Stockland’s landholdings extend south from Bong Bong Road to Cleveland Road. The contiguous land holding provides an opportunity to establish a north-south connection between Bong Bong Road and Cleveland Road, providing an alternative access route (and potentially an alternative flood access route) for the existing and future residential development.

The GCC also noted that the existing station at Dapto is well placed geographically to accommodate the needs of the West Dapto Masterplan. The extension of the release area further west along Bong Bong Road, and the potential for a north-south road connection and secondary access to the east via Cleveland Road at an early stage of the development of West Dapto provides a logical connection back to Dapto railway station to maximise the use of this infrastructure.

Significant access works have been carried out since the rezoning of Stages 1 and 2 and the implementation of the Wollongong Access Strategy is well underway. The West Dapto Access Strategy Status Update (as at 23 November 2011) identified the following works relevant to the subject site:

• The extension of Fairwater Drive to Bong Bong Road has been completed.

• The extension of Fowlers Road to Marshall Street has been completed.

• The extension of Fairwater Drive to Cleveland Road is over 60% complete and due for completion in Late 2011.

• Improvements to Cleveland Road (east of the railway) are almost complete.

• Improvements to Bong Bong Road (east of the railway) are planned for completion in mid 2012.

• Cleveland Road and Bridge will be upgraded in 2013.

Many of these works would be completed or near completion by the time a rezoning process has been concluded, and would certainly be completed before construction would commence in the land proposed to be rezoned.

These works are all located in Stage 3 of the release area. A Planning Proposal and future residential development would therefore be able to make use of the completed works.



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5.3.3 Servicing / Infrastructure Delivery We note that both Integral Energy and Sydney Water have progressed their servicing programs in the last 2 to 3 years and it now appears that servicing constraints can be overcome.

Stockland and their engineering consultant, Cardno (NSW/ACT) Pty Ltd, have been in consultation with servicing authorities. The following is a summary based on recent discussions with the relevant agencies:

Electricity - Endeavour Energy

Stockland, through Cardno, has maintained a consistent and extensive dialogue with Endeavour Energy throughout the development of its West Dapto land holdings. Most recently, Cardno has been liaising with Endeavour during November 2011 to confirm a number of supply arrangements.

Stockland’s development of the Brooks Reach project, has already resulted in the design of the necessary lead in high voltage electricity supply to this site. The design is currently the subject of a review of environment factors (REF) and when completed will be approved for construction. On approval, Stockland will commission the installation of an 11kV electrical feeder main leading form the Dapto Zone Substation, along Cleveland Rd and into the Brooks Reach site.

The design of this infrastructure, being a combination of below and above ground services, will allow for future amplification of services and is therefore suitable for future extension of electrical services to the Cleveland site.

Cardno’s discussion with Endeavour Energy has also confirmed that this proposal will have no adverse impact on the current West Dapto Release Area staging as the Dapto Zone Substation always allowed for further development to the west. The priority for Endeavour is to establish early supply of electricity to the Brooks Reach site via the 11kV feeder discussed above. Future demand requirements will be assessed based on individual design applications and supply needs met by extensions of the proposed 11kV feeder as required.

Water and Sewer - Sydney Water Corporation

Stockland has also maintained a consistent and extensive dialogue with Sydney Water as part of their developments at West Dapto. Most recently, Stockland and Cardno met with Sydney Water Corporation (SWC) in November 2011 to confirm a number of arrangements for a rezoning of Stage 3.

We understand that during that meeting, SWC reiterated previous advice that the site could be serviced with potable water currently residing in surplus capacity in the Wongawilli reservoir. In the medium term, the development would be serviced with a possible extension of the Bong Bong Road Trunk Main, which runs along Bong Bong Road and which is currently being extended to the western boundary of Brooks Reach.

SWC did advise that there is sufficient supply currently in the Wongawilli Reservoir and the only possible upgrades may include amplification of the mains along Shone Avenue to provide the required capacity.

In terms of sewerage, the site would be serviced via the existing sewerage infrastructure in Horsley. SWC advised that existing Pump Station 1012 has the pumping capacity to service the entire Cleveland catchment, although there is an upgrade necessary to do with the storage capacity of this pumping station. Sydney Water has major project approval for the sewer carrier main extension works to service Brooks Reach which will essentially provide a future connection point to the majority of the Cleveland area.



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The remaining areas within Cleveland will be serviced by either an interim sewer pump station transferring flows back to the Horsley Catchment, or depending upon timing of the works, may be serviced by the future Mullet Creek sewer extension. SWC confirmed that either option is acceptable and will provide appropriate services to this area.

Communications (NBN)

Based on the current NBN servicing footprint, the Cleveland area is suitable for supply of NBN services. Stockland will investigate pit, duct, and fibre capacity with NBN Co communication planners during the development application process. NBN Co services are provided on an as needed basis.

Cardno has had numerous meetings with NBN Co in relation to the provision of NBN Co services to West Dapto and can confirm that this area will be serviced on application.

Gas - Jemena

Stockland and Cardno have been in discussion with Jemena regarding natural gas supply to their West Dapto land holdings, including Cleveland. Jemena has recently extended its gas supply network along Bong Bong Rd to service Brooks Reach and this line will be further extended to allow for the Bong Bong Town Centre and Cleveland.

Jemena expects that natural gas will be available to the site once design investigations are finalised.

5.4 Funding of infrastructure The rezoning will provide a steady supply of development contributions to assist in funding community infrastructure for the area. There needs to be a continuous stream of development to ensure that the infrastructure identified in the West Dapto Development Contributions Plan is delivered on time to meet the needs of the community.

6 A Guide to Preparing Planning Proposals

6.1 Objectives or Intended Outcomes The objectives and intended outcomes of this Planning Proposal are:

• To rezone the land to permit residential development.

• To assist in meeting the IUDP dwelling forecasts.

• To create a population that can support the future Bong Bong town centre.

• To provide a catchment based approach to water management.

• To optimise the benefits of upgrades to Cleveland Road and other infrastructure.

It is also intended that as part of the detailed planning that land nominated as a residential zone within 300m of the Bong Bong Town Centre be subject to a minimum lot size of 300m2 to increase densities closest to the town centre and to assist in providing a critical mass to support the future town centre as well as greater housing choice and affordable housing options.

6.2 Part 2 – Explanation of Provisions The Planning Proposal proposes to be in the form of an amendment to the Wollongong LEP (West Dapto) 2010 and therefore utilise the existing provisions of the Wollongong LEP (West Dapto) 2010. Additional mapping will be required including land zoning, floor space ratio, height of building, lot size etc.



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6.3 Part 3 – Justification This Planning Proposal recommends that the subject site should be rezoned to permit residential to occur. The following section demonstrates how such an outcome at West Dapto will satisfy the questions that the Department of Planning applies to gateway determinations.

6.3.1 Need for the Planning Proposal 1. Is the Planning Proposal a result of any strategic study or report?

This Planning Proposal is not directly the result of any strategic study or report, however the subject site is part of a broader area which has been studied in great detail and has been the subject of numerous planning reports.

The site is included in the West Dapto Urban Release Area which has been identified in several strategic reports as being an important release area to meet the housing needs of the Illawarra Region. The site comprises a large part of the Stage 3 Cleveland Area.

Appendix C is a copy of the proposed staging for the West Dapto Release Area dated March 2006. The subject site has been outlined on the staging plan.

Appendix D is a copy of the West Dapto Masterplan dated June 2007, again with the subject site outlined. It can be seen at that time the subject site was proposed to be developed with a combination of medium density and standard residential.

In November 2008, the GCC considered the West Dapto Release Area and prepared a Planning Report for Council. An extract from the Executive Summary and recommendations is presented below.

“The West Dapto Release Area presents unique challenges. The physical constraints such as flooding and numerous riparian corridors coupled with access issues such as the need for several crossings of the rail line to enter and leave the area mean that planning and development of this release area are as difficult as such exercises get.

Nevertheless, this Review concludes that, if appropriately planned and supported by essential infrastructure, the staged development of the release can and should proceed in an affordable manner. This will help supply the Illawarra Region with land for housing needs for the next 30-40 years, accompanied by land for employment generation.”

In Section B of the recommendations, Staging of Development, the Planning Report says in part:

“Acknowledging that Sydney Water is still in the early stages of preparing an area plan for West Dapto there is a strong preference from both Sydney Water and Integral Energy to commence servicing of the release area from the north (Stages 1 and 2) and/or south (Yallah/Marshall Mount and potentially Calderwood).”

As discussed in Section 5.3.3, both Sydney Water and Endeavour Energy have advanced their servicing plans for West Dapto and both have advised that water supply, sewerage and electricity services can be made available to the subject site.

2. Is the planning proposal the best means of achieving the objectives or intended outcomes, or is there a better way?

A change of zoning is the only feasible way of permitting residential development on the subject site. It is acknowledged that the subject site would presumably eventually be rezoned for residential development under the scheduling proposed by the GCC, however the timing of that rezoning is at best uncertain with the likely outcome being delays to the development of West Dapto and particularly to the development of the Bong Bong town centre.

The Planning Proposal is considered the best and only viable means of achieving the intended outcome.

3. Is there a net community benefit



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There are a number of community benefits which will flow from the proposal:

• As noted in Section 5.1, development of Stages 1 and 2 of the release area is not proceeding as desired and this situation is not expected to change, given the fragmented ownership of land in those stages.

• The proposal would result in a greatly increased likelihood of meeting the land release targets set out in the Wollongong City Housing Strategy 2005, Illawarra Regional Strategy and the Illawarra Urban Development Program.

• The increased development around the Bong Bong town centre will facilitate earlier development of the Town Centre, thus providing additional facilities to the community at an early stage and reducing the community’s dependence on transport to travel to Dapto;

• The proposal will result in a coordinated approach to water management and flood control, with much greater certainty that water quality targets will be met at all times during the development of the land.

• The reduced number and more efficient design of the water management facilities will result in reduced maintenance costs for Council and hence the community.

• The community will benefit from the coordinated approach to the development and the consistent, efficient planning which will result.

• There is an opportunity to establish a north south link between Bong Bong Road and Cleveland Road at an early stage of the development and combined with an upgrade to Cleveland Road will provide the community with much improved and flood free access.

• Stockland will assist with the coordination and provision of infrastructure in cooperation with Wollongong City Council to ensure that community needs are met.

6.3.2 Relationship to strategic planning framework 4. Is the planning proposal consistent with the objectives and actions contained

within the applicable regional or sub-regional strategy?

The Illawarra Regional Strategy 2006-2031 was released in January 2007. The primary purpose of the strategy is to “ensure that adequate land is available and appropriately located to sustainably accommodate the projected housing and employment needs of the Region’s population over the next 25 years.”

The West Dapto release area is identified in the Strategy as being a “priority new release area” and is therefore an important element to the Strategy. As discussed in Section 5.1 there have been delays in commencing subdivisions in Stages 1 and 2 of the West Dapto release area due to the fragmented land ownership and associated difficulties with efficient development of land. The slow development rate has meant that the forecasts in the IUDP are not being met which in turn will affect the ability of West Dapto to achieve the primary objective of the Strategy to provide adequate land to cater for future housing in the region.

Consistency with the relevant components of the Strategy is set out in the Table 1 below.

Table 1: Consistency with Illawarra Regional Strategy 2006-2031

Key Aim or Action Consistency

Economic Development and Growth



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Provide adequate supply of employment land by ensuring new urban land releases such as West Dapto include employment lands and job opportunities

The Planning Proposal would act as a catalyst to encourage the Bong Bong town centre to develop by providing a population catchment to support the future town centre, in turn providing local job opportunities in the West Dapto release area.

Housing and Settlement

Provide 38000 new dwellings by 2031 to accommodate an additional 47600 people expected over the next 25 years.

West Dapto is a key land release identified to achieve the dwelling target of 38,000 dwellings in the region. The Planning Proposal can facilitate residential development to overcome the slow response to development in the West Dapto release area that has occurred to date due to the fragmented land ownership.

Ensure that 50% of new dwellings are provided in the form of detached housing, achieved through existing land release areas and the delivery of the West Dapto release area.

The Planning Proposal for a residential subdivision would incorporate a significant proportion of detached housing lots consistent with the Strategy.

Increase densities and revitalise areas around major centres and towns to provide housing choice in accessible locations, and to support economic growth.

This aim is considered to be directed to higher order centres, however, there is a potential to plan for higher density or different housing forms closest to the new West Dapto town centre. In particular minimum lot sizes of 300m2 within a 300m radius of the Bong Bong town centre are considered an appropriate outcome for the Planning Proposal.

Develop the West Dapto urban release area to deliver up to 19350 mixed dwellings based on Neighbourhood Planning Principles. (Note this dwelling target was revised down to 16,000 dwelling by the GCC).

The large land parcel will allow for meaningful planning of Stage 3 to be undertaken that can take into account the Neighbourhood Planning Principles in the Strategy.

LEPs and DCPs to incorporate appropriate urban design and land use objectives.

Natural Environment

WCC to incorporate planning controls recommended in the Illawarra Escarpment Strategic Management Plan into its LEP

Wollongong LEP 2009 has provisions relating to the Illawarra Escarpment conservation area. The Planning Proposal can consider the most appropriate zones for the western parts of the site which are at the foothills of the escarpment.

Protect high value environments including coastal lakes, estuaries, aquifers, threatened species, vegetation communities and habitat corridors by ensuring that new urban development minimises impacts on these important areas and their catchments.

Further detailed constraints analysis can identify the high value environments that should be retained as part of the Planning Proposal. Downstream impacts to Lake Illawarra would also be considered as part of the water management strategy. The Strategy expects the West Dapto release areas to incorporate total water cycle management measures including harvesting and onsite reuse of stormwater. The Planning Proposal is better placed to achieve this outcome in comparison to the highly fragmented land ownership pattern further north.



13


When planning new urban areas, the Strategic Assessments of Riparian Corridors methodology development by DNR in conjunction with DoP will be used by incorporating assessments into structure plans, appropriate zonings and management through a DCP.

These matters can all be considered as part of the detailed Planning Proposal to ensure consistency with the Strategy.

Natural Hazards

Limit development in places constrained by coastal processes, flooding and wetlands, or which are important primary industry resources or significant scenic/cultural landscapes

Flood constrained land would be managed on a catchment based approach. This will ensure a more holistic approach to managing this issue, consistent with the Strategy. Scenic and cultural values would also be considered as part of the future studies prepared for the Planning Proposal and are capable of consistency with the aims of the Strategy.

Water Energy and Waste

Council will identify and appropriately zone land required for wastewater, treatment, energy, waste, avoidance and resource recovery infrastructure in consultation with DEUS, DECC and relevant utilities.

Consultation and investigations can be undertaken as part of the Planning Proposal.

Cultural Heritage

Protect the cultural, European and Aboriginal heritage values and visual character of rural and coastal towns and villages and surrounding landscapes.

European and Aboriginal cultural values would also be considered as part of the future studies prepared for the Planning Proposal for the lands. Visual character would also be considered as part of the planning of Stage 3. The Planning Proposal is capable of consistency with the aims of the Strategy.

5. Is the planning proposal consistent with the local council’s Community Strategic Plan, or other local strategic plan?

Wollongong Future Strategy Report 2025

Wollongong Futures is a strategic planning initiative setting a 20 year vision for the LGA. The Strategy sets a number of desired outcomes or visions and the West Dapto release area is one of the major initiatives under the Strategy. The Planning Proposal is consistent with achieving these initiatives.

Wollongong City Housing Study 2005

The Study was prepared to provide strategic direction and inform the review of the former Wollongong LEP 1990 and various DCPs. The stated objective of the Study is “to provide a mix of housing choice for a broad demographic range, in addition to providing opportunities for housing that are affordable for people living in the city currently and for those choosing to live in the area in the future.”

Housing demand forecasting through population projections was undertaken as part of the Study. The model predicts that the study area’s population is going to increase by 52,600 over a 30-year period to 2031 or a demand for an additional 32,383 private dwellings by 2031. The analysis suggests around 50% should be separate houses, 31% should be semi-detached or townhouses, and the balance should be high density or other types of dwellings. The Study notes that some (approximately 13000 dwellings) of this demand can



14

be met through infill development. The Study also notes that West Dapto is the only area identified as offering significant Greenfield development potential with a capacity to supply approximately 14,400 low density dwellings, and 4,990 medium density dwellings, a total of 19,400.

The Study recognises that sufficient supplies of land to accommodate the forecast demand are available provided West Dapto is developed. Based on current trends, the development of recently zoned land in Stages 1 and 2 of the West Dapto release area has been slow to commence / not commenced due to fragmented land ownership. This trend is already apparent with the forecasts in the IUDP not being achieved (as discussed in Section 5.1). The land proposed to be included in the Planning Proposal is not constrained by the fragmented land ownership and can provide a supply of land to meet housing demands identified in the Study, the Illawarra Regional Strategy and IUDP.

6. Is the planning proposal consistent with applicable state environmental planning policies?

Consistency with the relevant environmental planning instruments is set out in Table 2 below.

Table 2: Consistency with environmental planning instruments

Environmental Planning Instrument Consistency

SEPP 1 Development Standards The Planning Proposal will amend WLEP (West Dapto) 2010 and pursuant to Clause 1.9, SEPP 1 does not apply. The Exceptions to Development Standard provisions in WLEP would apply in its place.

SEPP 4 Development Without Consent and Miscellaneous Exempt and Complying Development

The Planning Proposal will amend WLEP (West Dapto) 2010 and pursuant to Clause 1.9, SEPP 4 does not apply.

SEPP 6 Number of Storeys in a Building Consistent

The Planning Proposal does not propose controls for numbers of storeys.

SEPP 14 Coastal Wetlands Not applicable

SEPP 15 Rural Landsharing Communities Not applicable

SEPP 19 Bushland in Urban Areas Not applicable

SEPP 21 Caravan Parks Not applicable

SEPP 22 Shops and Commercial Premises Not applicable

SEPP 26 Littoral Rainforests Not applicable

SEPP 29 Western Sydney Recreation Area Not applicable

SEPP 30 Intensive Agriculture Not applicable

SEPP 32 Urban Consolidation (Redevelopment of Urban Land)

Not applicable

SEPP 33 Hazardous and Offensive Development

Not applicable

SEPP 36 Manufactured Home Estates Not applicable

SEPP 39 Spit Island Bird Habitat Not applicable

SEPP 41 Casino Entertainment Complex Not applicable

SEPP 44 Koala Habitat Protection Capable of consistency

SEPP 47 Moore Park Showground Not applicable

SEPP 50 Canal Estate Development Not applicable



15


SEPP 52 Farm Dams, Drought Relief and Other Works

Not applicable

SEPP 53 Metropolitan Residential Development Not applicable

SEPP 55 Remediation of Land. Capable of consistency

SEPP 59 Central Western Sydney Economic and Employment Area

Not applicable

SEPP 60 Exempt and Complying Development The Planning Proposal will amend WLEP (West Dapto) 2010 and pursuant to Clause 1.9 of WLEP SEPP 60 would not apply.

SEPP 62 Sustainable Aquaculture Not applicable

SEPP 64 Advertising and Signage Not applicable

SEPP 65 Design Quality of Residential Flat Development

Not applicable

SEPP 70 Affordable Housing (Revised Schemes)

Not applicable

SEPP 71 Coastal Protection Not applicable

SEPP (Building Sustainability Index: BASIX) 2004

Capable of consistency

SEPP (Exempt and Complying Development Codes) 2008

The Planning Proposal will not contain provisions that would be inconsistent with, or hinder the application of the SEPP.

SEPP (Housing for Seniors or People with a Disability) 2004


SEPP (Infrastructure) 2007 The Planning Proposal will not contain provisions that would be inconsistent with, or hinder the application of the SEPP.

SEPP (Major Development) 2005 Not applicable

SEPP (State and Regional Development) 2011 The proposal is not state significant development or state significant infrastructure.

SEPP (Sydney Region Growth Centres) 2006 Not applicable

SEPP (Kosciuszko National Park-Alpine Resorts) 2007

Not applicable

SEPP (Mining, Petroleum Production and Extractive Industries) 2007

Not applicable

SEPP (Temporary Structures and Places of Public Entertainment) 2007

Not applicable

SEPP (Rural Lands) 2008 The Planning Proposal is not considered to be inconsistent as the land subject land has already been identified for future urban release and identified accordingly in the Illawarra Regional Strategy.

SEPP (Western Sydney Parklands) 2009 Not applicable

SEPP (Affordable Rental Housing) 2009 Not applicable

SEPP (Western Sydney Employment Area) 2009

Not applicable

Illawarra REP No. 1 The Planning Proposal will amend WLEP (West Dapto) 2010 and pursuant to Clause 1.9 of WLEP Illawarra REP No. 1 would not apply.



16


REP 9 Extractive Industry (No 2-1995) Not applicable

REP 10 Blue Mountains Regional Open Space Not applicable

REP 11 Penrith Lakes Scheme Not applicable

REP 13 Mulgoa Valley Not applicable

REP 14 Eastern Beaches Not applicable

REP 16 Walsh Bay Not applicable

REP 17 Kurnell Peninsula (1989) Not applicable

REP 18 Public Transport Corridors Not applicable

REP 19 Rouse Hill Development Area Not applicable

REP 20 Hawkesbury–Nepean River (No. 2-1997)

Not applicable

REP 21 Warringah Urban Release Areas Not applicable

REP 24 Homebush Bay Area Not applicable

REP 25 Orchard Hills Not applicable

REP 26 City West Not applicable

REP 27 Wollondilly Regional Open Space Not applicable

REP 28 Parramatta Not applicable

REP 29 Rhodes Peninsula Not applicable

REP 30 St Marys Not applicable

REP 31 Regional Parklands Not applicable

REP 33 Cooks Cove Not applicable

Sydney Regional Environmental Plan (Sydney Harbour Catchment)

Not applicable

7. Is the planning proposal consistent with applicable Ministerial Directions (s.117 directions)?

Consistency with the relevant environmental planning instruments is set out in Table 3 below.

Table 3: Consistency with applicable section 117 directions

Section 117 Direction Consistency

1. Employment and Resources

1.1 Business and Industrial Zones Not applicable

1.2 Rural Zones The Direction applies, however the subject land has been identified for future urban release and identified accordingly in the Illawarra Regional Strategy.

1.3 Mining, Petroleum Production and Extractive Industries

The Direction applies, however the subject land has been identified for future urban release and identified accordingly in the Illawarra Regional Strategy.

1.4 Oyster Aquaculture Not applicable



17


1.5 Rural Lands The Direction applies, however the subject land has been identified for future urban release and identified accordingly in the Illawarra Regional Strategy.

2. Environment and Heritage

2.1 Environment Protection Zones Capable of consistency, subject to further investigations.

2.2 Coastal Protection Not applicable

2.3 Heritage Conservation Capable of consistency, subject to further investigations.

2.4 Recreation Vehicle Areas Capable of consistency

3. Housing, Infrastructure and Urban Development

3.1 Residential Zones The subject land has been identified for future urban release in the Illawarra Regional Strategy and therefore proposed for future residential development. The Planning Proposal can incorporate appropriate provisions to ensure consistency with the Direction.

3.2 Caravan Parks and Manufactured Home Estates


3.3 Home Occupations Capable of consistency

3.4 Integrating Land Use and Transport Capable of consistency

3.5 Development Near Licensed Aerodromes Not applicable

3.6 – Shooting Ranges This direction applies to a planning proposal that will affect, create, alter or remove a zone or a provision relating to land adjacent to and/ or adjoining an existing shooting range. The site is adjacent to the Illawarra Gun Club. The club is sited on the future town centre land. The land has been identified in the local and regional strategy as an urban release area and zoned B2 – Local Centre under Wollongong LEP (West Dapto) 2010. The land will eventually be redeveloped for a town centre removing a potential land conflict.

4. Hazard and Risk

4.1 Acid Sulfate Soils The land is not mapped as having a probability of containing acid sulfate soils. Not applicable.

4.2 Mine Subsidence and Unstable Land Not applicable

4.3 Flood Prone Land Capable of consistency

4.4 Planning for Bushfire Protection Capable of consistency

5. Regional Planning

5.1 Implementation of Regional Strategies The Planning Proposal is considered to be consistent with the Illawarra Regional Strategy as discussed in Section 6.3.2.

5.2 Sydney Drinking Water Catchments Not applicable

5.3 Farmland of State and Regional Significance on the NSW Far North Coast

Not applicable



18


5.4 Commercial and Retail Development along the Pacific Highway, North Coast

Not applicable

5.5 Development in the vicinity of Ellalong, Paxton and Millfield (Cessnock LGA)

Revoked 18 June 2010

5.6 Sydney to Canberra Corridor Revoked 10 July 2008. See Direction 5.1

5.7 Central Coast Revoked 10 July 2008. See Direction 5.1

5.8 Second Sydney Airport: Badgerys Creek Not applicable

6. Local Plan Making

6.1 Approval and Referral Requirements Capable of consistency

6.2 Reserving Land for Public Purposes Capable of consistency

6.3 Site Specific Provisions Not applicable

7. Metropolitan Planning

7.1 Implementation of the Metropolitan Strategy

Not applicable

6.3.3 Environmental, Social and Economic Impact 8. Is there any likelihood that critical habitat or threatened species, populations

or ecological communities, or their habitats, will be adversely affected as a result of the proposal?

No, much of the site has already been cleared and appears to have little or no environmental value. There may be habitat or populations of endangered or threatened species in the steeper western parts of the site and any development in this area will need to have regard to any identified constraints.

9. Are there any other likely environmental effects as a result of the planning proposal and how are they proposed to be managed?

The proposal is likely to result in at least some disturbance to the stockpile of coal washery reject located near the site of the town centre. Before any works are undertaken, the stockpile will be the subject of geotechnical and contamination studies to determine how best to treat the material to ensure that it is stable and safe.

Parts of the site are known to be flood prone. As noted in Section 5.3.1, the flooding characteristics of Mullet Creek are well understood and hence it will not be technically difficult to engineer acceptable solutions to ensure flood free development.

It is not expected that there will unacceptable bush fire risk, since the development site is down slope of the escarpment and in any case is largely cleared of vegetation.

10. How has the planning proposal adequately addressed any social and economic effects?

The social and economic benefits of the proposal have been addressed in answer to Question 3.

There are no known items or places of European or Aboriginal heritage, but in any case it is expected that these matters will be studied once the gateway determination has been made.

6.3.4 State and Commonwealth Interests 11. Is there adequate public infrastructure for the planning proposal?

The issue of services infrastructure has been addressed in Section 5.3.3.



19

The West Dapto Master Plan provides for the Bong Bong town centre which will cater for shopping and community facilities.

12. What are the views of State and Commonwealth public authorities consulted in accordance with the gateway determination?

Many State public authorities have been consulted as noted elsewhere in this submission.

Consultation with the remaining relevant State and Commonwealth public authorities can be undertaken in conjunction with the exhibition of the Planning Proposal following the Gateway Determination.

6.3.5 Community Consultation Public consultation will take place in accordance with the Gateway Determination made by the Minister for Planning in accordance with Sections 56 & 57 of the Environmental Planning & Assessment Act 1979. This will involve notification of the public exhibition of the Planning Proposal for a period of 14 days:

• On Wollongong City Council’s website

• Publication in local newspapers

• Writing to adjoining landowners and relevant community groups in the immediate vicinity of the site.

7 Conclusion Stockland owns a significant proportion of the land which adjoins a site already zoned for residential development (and the subject of a development application). The site also adjoins the site of the future Bong Bong town centre.

Stockland proposes that the subject site be rezoned to permit residential development.

This Planning Proposal has demonstrated that the proposal is consistent with the relevant strategies and is not inconsistent with applicable environmental planning instruments or Section 117 Directions.

Importantly, the Illawarra Regional Strategy has identified the West Dapto release area as a “priority release”. To date there has been a slow response to development of the land already released (Stages 1 and 2) which might continue for some time given the fragmented ownership which in turn compounds the management of issues such as access, water management, servicing etc. This slow response to development will potentially result in missed housing supply targets upon which the Strategy is founded.

Stockland’s land holdings, being at the core of the subject site and being in the one ownership provide an opportunity to take a catchment management based approach to water management consistent with the Illawarra Regional Strategy as well as a coordinated approach to the provision of infrastructure, access and services to ensure that residential land is available in a timely fashion in accordance with the adopted release strategy. This will overcome the shortcomings of the fragmented land ownership in the already released areas and thereby assist in meeting the housing supply targets identified by in the Illawarra Regional Strategy and Illawarra Urban Development Program.

APPENDIX A

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BONG BONG ROAD

CLEVELAND ROAD

AVONDALE ROAD

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®

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LegendProposed Rezoning BoundaryStockland Land HoldingsMajor Roads (LPI)Watercourse (LPI)Cadastre (LPI)

Map Produced by Cardno WollongongDate: 25/11/2011

Coordinate System: GDA 1994 MGA Zone 56Project: 110079-01

Map: 1862_ProposedRezoningBoundary.mxd 04Aerial imagery supplied by Bing Maps and associated third party suppliers

Scale 1:15,000 (at A3)

Proposed Rezoning Boundary

WEST DAPTO, NSW

APPENDIX B

")

")

!(

!(

!(

!(

300SEWER 300 2 x 33 kV FEEDERS

33 kV FEEDAvon Reservoir (Proposed)

Mount Marshall Reservoir (Proposed)

WONGAWILLI RESERVOIR

33kV

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HUNTLEY

DAPTO

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YALLAH

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CLEVELAND

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A VONDALE ROAD

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BRIGHT PARADE

YALUNGA S

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KANAHOOKA ROAD

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LegendProposed Rezoning Boundary

!( Reservoir!( Proposed Reservoirs!( Sewer Pumping Station (Sydney Water)") Zone Substation

10m Contours (LPI)Avon Water Supply Limit (2004)Mount Marshall Water Supply Limit (2004)Watermain (Sydney Water)Sewermain (Sydney Water)Electricity Transmission Line (LPI)Eastern Gas Pipeline (Jemena)Proposed ElectricityProposed WatermainProposed SewermainStockland Land HoldingsDapto Electricity Bulk SupplyEasement (LPI)Cadastre (LPI)

Map Produced by Cardno WollongongDate: 28/11/2011

Coordinate System: GDA 1994 MGA Zone 56Project: 110079-01

Map: 1863_ServicesPlan.mxd 01

Scale 1:26,000 (at A3)

Services PlanWEST DAPTO

APPENDIX C

SUBJECT SITE

APPENDIX D

Horsley

Shone Village

Paynes Village

Huntley Village

Moorland VillageAvondale Village

Avondale Heights

Cleveland Heights

Wongawilli Village

Purrungully Village

Jersey Farm Village

Robins Creek Village

Marshall Mount Village

Bong Bong Town Centre

Kembla Grange Station

Darkes Road Town Centre

Proposed Penrose Station

Dapto Railway StationDapto Sub Regional Centre

Cleveland Village

Fowlers Road Village

0 1

Kilometres

CITY STRATEGY

SCALE 1:32000 @ A3

West Dapto Master Plan While every effort has been made, to ensure the highest possiblequality of data, no liability will be accepted for the inaccuracy of

the information shown

COPYRIGHT WOLLONGONG CITY COUNCIL

GIS REFERENCE

COUNCIL FILE NO.

SU21813

MAP 1 OF 1 MAPS

COMPILATION

MAP PRINTED

NOVEMBER 2006

JUNE 2007

West Dapto Master Plan.mxdH JONES

AMENDED H JONES JUNE 2007

Primary Movement StructureStations

West Dapto Precincts

Release Area Boundary Retail Commercial CentresNeighbourhood CentreMedium Density Residential

Residential

Employment Lands

400m/800m Catchment

Green Space

Heritage Precincts

Significant Bushland

Riparian Lands

Rural Residential

SUBJECT SITE

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