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GROWTH ACTION PLAN
POLICY RESPONSES & PRIORITY ACTIONS FOR GROWTH
October 2008 Strategic Planning Department
City of Salisbury
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CONTENTS
1.0 INTRODUCTION .................................................................................................. 1
2.0 STRATEGIC CONTEXT ....................................................................................... 2
3.0 OUR APPROACH TO GROWTH.......................................................................... 4
3.1 WHY AN ACTION PLAN FOR GROWTH? ................................................................. 4
3.2 IMPERATIVES FOR FUTURE GROWTH .................................................................... 7
3.3 OUR COMMITMENT TO SUSTAINABLE GROWTH ..................................................... 7
3.4 SUSTAINABLE GROWTH PRINCIPLES..................................................................... 8
3.5 GROWTH POLICY AREAS ..................................................................................... 9
3.6 ANTICIPATED OUTCOMES .................................................................................... 9
3.7 SUCCESS INDICATORS....................................................................................... 10
4.0 GROWTH POLICY & ACTIONS ......................................................................... 11
4.1 SITE PRIORITISATION & PROCESS FOR RESIDENTIAL DEVELOPMENT.................... 11
4.2 GROWTH POLICY & ACTIONS ............................................................................. 12
Growth Policy Area 1: Transit Oriented / Activity Centre Developments........... 12
Growth Policy Area 2: Growth Corridor Developments..................................... 16
Growth Policy Area 3: Growth Precincts Developments ................................... 17
Growth Policy Area 4: Other Growth Areas / Sites for Investigation ................. 26
4.3 COMPILATION OF GROWTH ACTIONS .................................................................. 29
5.0 CONCLUSION .................................................................................................... 32
6.0 REFERENCES ................................................................................................... 32
7.0 APPENDICES..................................................................................................... 33
7.1 SITE PLANNING & DEVELOPMENT FRAMEWORK .................................................. 33
7.2 ASSUMPTIONS USED FOR PROJECTING DWELLING YIELDS .................................. 35
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1.0 INTRODUCTION The City of Salisbury recognizes that achieving sustainability is the key to the better future for our community. The concept of sustainability recognizes the interrelationship between environmental, social and economic factors and respects the needs of both current and future generations. Given that our capacity to achieve economically and socially prosperous future depends on the environmental capacity to sustain these activities, it is imperative to consider these three factors when planning for the City. The Growth Action Plan is a response to how we can contribute in achieving the long-term sustainability of the City and provides a land use planning framework and key actions for Council. In striving for a sustainable, prosperous and progressive future, it is imperative to continually support the economic growth experienced in the City and optimise subsequent employment opportunities being presented while responding to the issues of climate change and natural resources management. When considering growth, the City will take a creative and innovative approach in facilitating development that can:
• help create more economic opportunities; • build strong, vibrant, safe community where people want to live, visit and work; • preserve and enhance the quality of life and community wellbeing; and • protect the environment.
The City already has its integrated strategic planning framework and undertakes a range of initiatives to facilitate sustainable growth. Salisbury’s economy has grown rapidly and this is projected to continue. The City also leads in integrated water management practices and preservation of open space. However, we are now facing challenges of climate change, energy and water scarcity, an ageing population, housing affordability and global competition. Furthermore, the City’s capacity to grow is constrained within the existing land use framework. Proactive and coordinated actions are required if individual and community economic and social outcomes are to be maximised. The Growth Action Plan addresses the needs for the City to grow in order to achieve sustainable, prosperous and progressive future. It outlines how we will address those needs, often in partnership with other levels of government and private sector. These needs are considered in the light of challenges and opportunities for our City as we approach residential development in an integrated and sustainable way.
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2.0 STRATEGIC CONTEXT The Growth Action Plan has been developed to ensure integration across a broad range of policy directions and actions being developed for the City. In particular, our responses for the future take Federal and State directions into consideration and identify where it is appropriate to work in collaboration with other levels of government but importantly reflect the vision, aims and objectives that underpin Salisbury’s City Plan and align with the Living City Strategy. The Living City Strategy has four Planning and Policy Streams, namely Population, Health and Wellbeing, Learning, and Neighbourhood Planning/Place Management. The Growth Action Plan is in response to the Population Stream with a goal to plan for a growing population (see Figure 1 below).
Figure 1: Growth Action Plan Framework
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SUSTAINABLE FUTURES Strategic City Plan
SA STRATEGIC PLAN & PLANNING STRATEGY
SALISBURY SUCCESS Organisational Excellence
Strategy
THE LIVING CITY Community Development
Strategy
SHAPING THE FUTURE
Economic & Business Development Strategy
SUSTAINING OUR ENVIRONMENT
Environment & Climate Change Strategy
DEVELOPMENT PLANBUSINESS PLANS
- Departmental - Divisional
ANNUAL PLAN + BUDGET
INDIVIDUAL PERFORMANCE PLANS
Population Health & Wellbeing
LearningNeighbourhood Planning / Place
Management
GROWTH ACTION PLAN
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The State government has undertaken a review of the South Australian Planning and Development System and released its findings on 10 June 2008. Key elements of the reform include:
• A 30-year plan to properly manage Adelaide’s growth and development; • Investment in building efficient transport corridors, transit Oriented developments
(TODs) and growth precincts that encourage the creation of new commuter-friendly neighbourhoods within existing suburbs;
• A 25-year rolling supply of broadacre land to meet the residential, commercial and industrial needs of a growing population and expanding economy through careful expansion of the urban boundary; and
• Simplified and more efficient assessment of development proposals by introducing a Residential Development Code (ResCode) which sets performance standards for complying (“as of right”) development providing a simple, one-stop guide for consumers.
The above directions have been incorporated in developing the Growth Action Plan as Councils are required by legislation to ensure that amendments to planning policy are in accord with State Government strategies as reflected in the Planning Strategy for Metropolitan Adelaide. Together with these, the Growth Action Plan works in conjunction with and complements the City of Salisbury’s Strategic City Plan 2008-2020, Sustainable Futures and other Council strategies and action plans. Strategies including:
• Salisbury Shaping the Future: Strategic Economic Plan • Salisbury Sustaining Our Environment: An Environmental and Climate Change
Strategy • Salisbury The Living City: Social and Community Development Strategy
Action Plans including:
• The Game Plan • Asset Management Plan • Transport Plan • Ageing Strategy • Youth Action Plan • Sustainable Energy Policy and Action Plans • Urban Development and Transport Policy and Action Plans • Waste Reduction Policy and Action Plans.
NB: The above is not an exhaustive list.
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3.0 OUR APPROACH TO GROWTH Our City Plan, Sustainable Futures sets our population target of 170,000 by the year 2030. In working towards achieving this target, the following highlights current realities, opportunities that need to be pursued.
3.1 WHY AN ACTION PLAN FOR GROWTH? Key Issues and Trends The ageing of the population is widespread among OECD nations including Australia due to changing demographic and social trends such as declines in birth rates, longer life expectancy and post WWII migration patterns. An ageing of the population is particularly evident in South Australia, and also in Salisbury. There was an increase in people aged over 60 years from 12.3% of the total population in 2001 to 16.0% in 2006. There was a decline in children aged 0-9 from 14.9% in 2001 to 13.3% in 2006. This trend is likely to continue if there is no intervention (Figure 2).
Figure 2: Age structure of Salisbury population, 2006 & 2031
Because our population is ageing while a number of families with children living in Salisbury is declining, it is likely that our population will start declining sooner or later. Our initial population projection suggested that our population will stagnate at 130,000 in 2016. Even with the most recent opportunistic projection, our population is projected to stagnate in 2021 and start declining in 2026, peaking at 133,489 (id 2008). In the next eight years, the proportion of people aged over 65 will increase further and the baby boomers will enter retirement. Given that nearly one third of Australian population is the baby boomers representing about half of labour force (ABS 2007), this has massive implications for the Federal Government in relation to a decreasing tax base from which to pay increasing amounts of age pension. There are also huge implications for the Local Government in: meeting labour market demand; sustaining economic growth and population; and providing services for changing population.
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Given that Salisbury’s economy has been growing and subsequent employment opportunities have been generated, it is crucial to attract and retain both skilled and semi-skilled workforce to meet the current and future local labour demands. Our ability to sustain economic prosperity and maximise the opportunity for the City highly depends on the ability to attract, retain and increase the capacity of workforce. The City of Salisbury is located within close proximity to strategic industrial areas and innovation precincts – GEP, Defence Precinct and MIP to the north and Le Fevre Peninsula and Gillman to the southwest – presenting great opportunities to facilitate creating self-contained sub-region where people could both live and work (Figure 3). This will not only contribute in reducing travel to work time and providing critical demand mass for a range of local services including public transport and businesses but also continue to support regional economic growth. In order to maximise the benefit of compact and more sustainable form of development, opportunities exist to facilitate the provision of greener transport options such as public transport, cycle and pedestrian networks linking the above mentioned employment lands and residential areas.
Figure 3: Regional economic attractors, Northern metropolitan Adelaide
There has been a major shift in household type over the years. Between 1996 and 2006, couple families with no children has shown a steady increase, couples with children has declined at approximately the same rate, sole parent families have increased and lone person households have increased. In relation to household occupancy in 2006, by far the most common trend was for 2 persons to occupy a 3 bedroom house (10,024 households), followed by lone persons in a 3 bedroom house (5,809 households) – this was particularly evident in older suburbs such as Ingle Farm and Pooraka. Interestingly, only 1,897 households of 4 persons occupied a 3 bedroom house and 2,283 occupied a house with 4 or more bedrooms – while 1,712 of 2 person households had 4 or more bedrooms. At the same time, a number of large families (family size of up to 11) are arriving as part of Department of Immigration and Citizenship (DIAC)’s humanitarian intake. Conventional housing can be overcrowded for those large families. Provision of the diverse housing types to cater for needs of various populations is necessary.
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Furthermore, there has been a significant decline in housing affordability in recent decades. Land prices in metropolitan Adelaide increased by 300% between 1993 and 2006 (Planning and Development Review Steering Committee 2008). While Salisbury has relatively maintained the affordability compared to inner suburbs, housing prices have risen significantly disproportional to the increase in household income. This is a major concern as maintaining housing affordability and diversity for all is a key factor in attracting people to the City. Current Capacity to Accommodate Future Growth The South Australian State Government has a population target for the State of 2 million people by the year 2050. Based on assumptions regarding relative land available for development and/or regeneration, the northern region, including Salisbury, could potentially absorb a significant proportion of this increase. A large increase in population presents opportunities and challenges. The fundamental question we need to ask is whether we have capacity to accommodate future growth whilst maintaining a quality of life. Based on the recent trends in densities, potential yield from these sites are likely to be 3,000 to 3,600 dwellings. This equates to 6,600 to 7,920 additional people based on an average household size of 2.2. Given the average rate of residential developments over the last five years being approximately 1,000 dwellings per annum, if we continue to develop at this rate, existing greenfields sites within residential zones are likely to be exhausted by the end of 2011 (Figure 4). This is a huge concern as the land availability directly affects our capacity to grow. Once our greenfields sites are consumed, our residential development opportunities will be constrained to infill / redevelopment. While infill / redevelopment, particularly those along transport corridors and around service centres, can reduce ecological footprint by utilising existing and infrastructure and accessible public transport, its capacity and rate of accommodating population growth is limited and is of a long-term nature. This is because most of these sites are privately owned thus subject to market influences and what individual land owners decided to do. It is projected that infill development is likely to yield around 100 dwellings p.a for the next 20 years (id 2008). Given the City’s proximity to State’s key employment lands, there is lost opportunity if we were to only focus on infill / redevelopment.
Figure 4: Housing Development Projection to 2031, City of Salisbury
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The limited residential land supply within urban boundary has significant economic and social implications for the City as our residential revenue stream will be constrained. The City’s Long-term Financial Plan projects that a residential revenue growth rate will decline from 3.5% to 1.5% over the next ten years. Notwithstanding the fact that numbers of young people are declining, we still have high numbers relative to some other Local governments and Council still needs to provide services for them while at the same time meeting increased need for the ageing population. This means that without revenue growth, we will need to either reduce services or increase rates.
3.2 IMPERATIVES FOR FUTURE GROWTH The previous section represented a range of economic, social and environmental challenges that the City is facing and needs to be offset by opportunities arising from:
• attracting and retaining population; • facilitating economic development and meeting labour force demand; • encouraging a diversity of housing product; • maintaining or improving services and quality of life; • optimising existing infrastructure; and • reducing ecological footprint.
To realise these opportunities, the Growth Action Plan will address the issues of growth not only in a context of residential development but also acknowledges the connections between residential development and the other economic, social and environmental issues detailed in the overarching policy direction, the Sustainable Futures: Salisbury’s City Plan. Whether those opportunities are realised or not is highly dependent on the direction taken in public policy and drivers for growth as outlined in Section 1. The fundamental factor that influences our ability to achieve sustainable growth lies in addressing the imminent shortage of residential land supply that can accommodate our population growth in the short to medium term. The Growth Action Plan recognises the interrelationships between policy and activities at the local and regional scales. The responsibility for meeting the challenges from changing population and climate change, and maximising opportunities arising from economic development lies with all levels of government, as well as with business, communities and individuals. Clearly, responsibility for action will vary with the issue, but the breadth and complexity of the issues will require co-ordinated action that is proactive rather than only responsive if individual and community economic and social outcomes are to be maximised.
3.3 OUR COMMITMENT TO SUSTAINABLE GROWTH Our response for our future approach for growth is underpinned by the key issues and the imperatives and opportunities that these present. Aligned with these, is the City of Salisbury’s philosophy that ‘sustainable growth’ requires an early, proactive approach which focuses on ensuring the City sustains economic and social prosperity while continually improves on environmental outcomes and thereby passing the benefits onto the future generations. When considering sustainable growth, we are committed to planning not only ‘how many’ people will / can live in the City, but ‘how those people will live’. This involves an integrated approach and encompasses population growth and retention, housing, multicultural and Indigenous affairs and the social, economic and environmental impact of development.
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In planning for our population growth, we must provide services for our existing residents, and plan for further residential development. As it may be challenging, population growth can provide an opportunity in improving services by providing critical mass. Having critical demand mass also helps sustaining service level as services can operate at fuller capacity. We strive for planning the City in a way that would encourage less resource use thus reducing the costs to the community while enhancing economic competitiveness by reducing dependence on carbon based global economy. Together with behavioural change strategies, these enabling factors will likely to help people live in more sustainable ways, contributing to increase Earth’s capacity to sustain a larger population. This approach will position our City advantageously to assist in meeting the population targets of the State government but also recognises meeting the needs of business through having access to a larger workforce and aspirations of different population groups, such as families and children, young people, older people, those from diverse cultural and ethnic backgrounds and Indigenous people. Salisbury is developing affordable and sustainable housing opportunities for its community including identifying areas within its boundaries or particular initiatives that can provide for further residential development. Those options will include the consideration of the rising number of people over 65, people living alone, desired population densities; inclusiveness and the clear need for variety, flexibility and adaptability in the dwellings constructed. Salisbury, as the Living City, will continue to celebrate our diversity, our past and future, in creating an environment that provides a range of housing choices and appropriate infrastructure, and fosters healthy and creative lifestyles.
3.4 SUSTAINABLE GROWTH PRINCIPLES We consider that ‘sustainable growth’ is an approach in planning for our population growth that promotes economic, socially and environmentally sustainable development. Based on the imperatives discussed previously, the guiding principles are outlined as follows. Economic Prosperity
• Facilitate a competitive advantage • Link residential growth rates to local employment opportunities • Promote and facilitate life-long learning and build community capacity • Facilitate community prosperity • Support and enhance existing centres • Minimise financial cost to Council
Social and Cultural Enhancement
• Provide and promote a range of cultural and leisure opportunities • Provide and promote a range of housing type, sizes and tenures to attract a
broad range of residents • Enhance amenity of the City • Create a vibrant and self-sufficient community • Create a safe, accessible and healthy local environment • Create a family and children friendly environment • Provide quality useable open space that integrates with the surrounding built
form • Ensure the provision of services and infrastructure meet community needs
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Environmental Sustainability & Responding to Climate Change
• Reduce the need for private car usage • Provide a range of transport options and promote the use of public transport and
non-motorised form of transport • Promote water and energy efficient design and sustainable built form • Maximise existing asset utilisation / capability • Protect and enhance ecosystems
Mixed Use Urban Form
• Promote a range of land uses that result in reduced levels of physical separation of job and residential locations where appropriate
• Promote the development of community, recreational, educational and retail facilities in the proximity to residential areas
• Ensure that on average, 20% of all new significant residential developments are affordable to Salisbury residents
• Provide a range of housing choice and transport options • Create walkable communities • Integrate with and support existing developments and centres
It is envisaged that each development will be evaluated against the above principles while taking site context into consideration.
3.5 GROWTH POLICY AREAS The Growth Action Plan is organised around four core policy areas, which are aligned with State’s directions:
1. Transit Oriented Developments 2. Transit Corridor Developments 3. Growth Precincts Developments 4. Other Areas / Sites for Further Investigation.
The purpose of this action plan is to outline land use planning framework and broad key actions for the City of Salisbury’s growth for the next five years. In doing so, it provides focus within the Council on a range of activities and initiatives associated with the population growth. It is also designed to provide directions for the wider community and key stakeholders, particularly State government agencies, in identifying opportunities for closer partnering relationships to achieve sustainable growth. Reviews of the Plan will be undertaken periodically to reflect the progress and relevance of policy responses and actions.
3.6 ANTICIPATED OUTCOMES In realising the Council’s overall vision ‘Excellence in building a community of opportunity and spirit in a quality environment’. The anticipated outcome of the Growth Action Plan is to facilitate residential development to cater for the City’s population target. In context, consequences of developments will also facilitate achieving the following targets outlined in the City Plan:
• Increase population of Salisbury to 170,000 before 2030 • A minimum of 15% of all dwellings in new residential developments be
‘affordable’ • No net reduction in native species • To reduce ecological footprint of the City by 30% by 2050 • To achieve zero greenhouse gas emissions growth on the 1994/95 levels for the
City
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• Continue to exceed the State annual growth rate in GSP • Increases patronage of public transport by 10% based on 2008 levels.
3.7 SUCCESS INDICATORS • Percentage of ‘affordable’ housing developed in new residential developments • Population of Salisbury • Number of native species gained and lost • Ecological footprint of the City • Gross Regional Product of Salisbury • Public transport patronage.
In addition to the above, the sustainable growth principles will be used to develop appropriate indicators to measure the success of each development.
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4.0 GROWTH POLICY & ACTIONS
4.1 SITE PRIORITISATION & PROCESS FOR RESIDENTIAL DEVELOPMENT Based on the information presented, this section outlines key actions required for each growth area / site for the next five years. Actions are prioritised according to the following criteria:
• Alignment with Federal and State Government policy directions • Alignment with Council’s policy directions • Ability to complement or even enhance benefits to existing and proposed Council
endorsed projects and programs • Alignment with private sectors’ investment decisions (given that their desired
outcomes meet Council’s policy directions) • Ability to achieve maximum outcomes in the most efficient manner.
It is also noted that the suggested key actions and timeframe are subject to the State’s and Council’s future strategic directions; Council’s resources; and Council’s requirement to address unforeseeable significant issues and projects that may arise. For all key actions identified in this section, the following investigation processes are generally followed1. It is noted that more detailed steps and timeframes are specified only for high priority sites. Stage 1: Research
1. Define a study area 2. Review local context 3. Identify opportunities & constraints
Stage 2: Planning
1. Define a site 2. Define a vision & specific objectives for the site 3. Develop planning, design principles and targets 4. Undertake a structure planning process (including development of growth
scenarios) 5. Assess feasibility of growth scenarios 6. Document agreed development process by developing an action plan
Stage 3: Implementation
7. Implement actions identified in action plans including DPA where applicable
Consultation It is envisaged that stakeholder / community engagement will be undertaken. In accord with the organisational guideline for community engagement, which is currently under development, a separate engagement framework will be developed for each site to undertake the effective site planning and development process. 1 See Appendix for detailed items to be examined during the investigation process.
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4.2 GROWTH POLICY & ACTIONS
Growth Policy Area 1: Transit Oriented / Activity Centre Developments Goal To put in place policies and actions that facilitate the provision of a mix of high-density, high-quality housing located with employment, mass transit, services and recreation opportunities. Definition Planning SA defines Transit Oriented Developments (TODs) as a multifunctional development which contain a mix of medium to high density residential development with a diverse range of retail and commercial uses as well as community facilities. As name suggests, typically, TODs are located in 800m proximity to an efficient public transport service and provide an urban fabric that encourages walking, cycling and the use of public transport. TODs and Activity Centre Developments opportunities are shown below (Figure 5).
Figure 5: TOD / Activity Centre Development Opportunities
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Priority Actions: 1.1 Mawson Lakes Transit Oriented Development
Site Context: Mawson Lakes Town Centre has been identified by Planning SA as one of the 11 proposed sites for TODs. In conjunction with the State Government and Delfin Lend Lease, Mawson Lakes TOD is a master planned development that is already in progress. It utilises existing rail and bus interchange and encourages mixed use development including UniSA, Technology Park, other offices, retail and quality medium to high density residential developments. Priority: High Tasks 1.1.1 Complete Mawson Lakes Development Plan Amendment.
Timeframe: September 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA, Delfin
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1.2 Salisbury Town Centre Transit Oriented development
Site Context: Salisbury Town Centre is a major public transit interchange and district centre. The Town Centre has the largest concentration of business and administration within the City and contains a Civic Square, major public transport interchange (rail and bus), a mixed use total floor space of over 86,000m2 and a wide range of commercial and community facilities within walking distance of the interchange. The Town Centre has the opportunity to further develop its role and function with proposed commercial and residential investments. The Centre also has strategically located vacant State Government owned land in the vicinity of the interchange that provide future development potential and a catalyst for further investment.. An indicative additional dwelling yield within 800m of a District Centre Zone is an additional 2,700 dwellings
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Priority : High Tasks: 1.2.1 Review the existing Salisbury Town Centre Strategy.
Timeframe: October 2008 – December 2008 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA, Salisbury
Town Centre Association 2 Potential yields are indicative only. It will depend on the site context and engagement process.
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1.2.2 Undertake a masterplanning exercise for Salisbury Town Centre TOD. Timeframe: October 2008 – November 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA, Salisbury
Town Centre Association 1.2.3 Implement actions identified in action plans for Salisbury Town Centre TOD.
Timeframe: Commencing January 2010 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA, Salisbury
Town Centre Association and Private Sector 1.3 Salisbury Downs District Centre (Hollywood Plaza) It is also envisaged that areas around Hollywood Plaza be investigated for further residential development with higher density. Hollywood Plaza is a Salisbury Downs District Centre comprising a range of services and has a bus connection and a bike network to the Salisbury Town Centre. Given the proximity to the Salisbury Town Centre, the potential exists to strengthen linkages of these two areas. Within 800m of the District Centre Zone, potentially additional 2,400 dwellings can be developed2. Priority: Low 1.4 Other centres In addition to the above, investigations on constrained centres that are within / close to the study area will be undertaken to identify opportunities for alternative use such as medium density housing (See 4. Other Growth Areas / Sites for Investigation for site context and actions).
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Growth Policy Area 2: Growth Corridor Developments Goal To put in place policies and actions that facilitate the provision of high- to medium-density, high-quality housing located with good public transport (both rail and bus), that link to employment, services and recreation opportunities. Definition Given that Main North Road and the Gawler Railway line serve the major public transportation corridor between CBD and the Northern Region, Growth Corridors are defined as land 500 metres on each side of Main North Road and the Gawler Railway line. Priority Actions: 2.1 Penfield Residential Development
Site Context: An area known as the Penfield Recreation Precinct presents an immediate opportunity for residential development. Located north of Commercial Road and west of the GM Holden site in Edinburgh, the area contains a golf course, other sporting and recreation facilities together with other underutilised land and vacant buildings. The site is located in close proximity to the rail line and has potential to support the growth of the Salisbury Town Centre. There is also opportunity for a small activity
service centre. The Statement of Intent to rezone the Penfield Recreation Precinct from Enterprise to Residential has been submitted to the Minister in July 2008. It is envisaged that 600 dwellings can be developed. Priority: High Tasks 2.1.1 Undertake Penfield Residential DPA to rezone parts of the Edinburgh Estates to
recognise existing residential land uses and increase the amount of residential land. Timeframe: September 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA
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Growth Policy Area 3: Growth Precincts Developments Growth Precincts Developments comprise of the following three development categories:
3.1 Urban regeneration 3.2 Housing development utilising Council owned surplus land 3.3 Broadacre developments
3.1 Urban Regeneration Goal To put in place policies and actions that facilitate the provision of a mix of medium-density, high-quality housing located close to employment that would utilise and enhance existing services and centres while revitalising neighbourhoods. Priority Actions: 3.1.1 Urban Regeneration at the Ingle Farm Precinct Site Context: An area comprising Ingle Farm, Pooraka, Valley View, Para Vista and part Para Hills presents opportunity for urban regeneration. By concentrating growth around Ingle Farm District Centre and possibly key local centres within the area, it is envisaged that the growth would revitalise centres and enhance existing service provision while revitalising neighbourhoods. The proposed regeneration area is shown in (Figure 6). The area is a major bus route destination linking Paradise Interchange, Ingle Farm and Mawson Lakes District Centres via Technology Park and UniSA. Being the closest area to CBD, combined with majority having old housing on large blocks, the area has the potential for redevelopment. The area also has a reasonable number of Housing SA owned properties that may, depending upon Housing SA policy on renewals, provide the opportunity for upgrades, increasing yields and therefore some sales to offset the renewal. Council owned open space and existing community lands readily available for residential development (eg Walkleys Road corridor) can also be utilised to stimulate and lever further investment and residential growth. The State Government is currently reviewing its land ownership in the inner North Region and the northern extent of its study area includes the old Transport SA depot situated on the intersection of Wright Road and Bridge Road. It is likely that the study will recommend future residential land use for this site. The surrounding land use is compatible to accommodate further residential development. Potentially additional 3,800 dwellings can be developed within 800m of a District Centre Zone and additional 800 dwellings from the rest of the area
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Priority: Medium
3 Potential yields are indicative only. It will depend on the site context and engagement process.
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Figure 6: Urban regeneration opportunities
Tasks 3.1.1.1 Undertake a scoping study for urban regeneration.
Timeframe: January 2009 – April 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA.
3.1.1.2 Undertake a masterplanning exercise for urban regeneration.
Timeframe: May 2009 – April 2010 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA.
3.1.1.3 Implement actions identified in action plans for urban regeneration.
Timeframe: May 2010 onwards Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Land Management Corporation, Planning SA.
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3.1.2 Walkleys Road corridor residential development Walkleys Road Corridor is zoned residential and is located north of Montague Road and east of Bridge Road in the suburb of Ingle Farm. This land is an extension of Walkleys Road. A parcel of land adjacent to Bridge Road is in private ownership and a retirement village has been proposed. The remaining area is approximately 61,000m2 and has a width of some 47m. The area is surrounded by residential development (predominantly detached dwellings) and is in proximity to the Ingle Farm District Centre, Ingle Farm School, North Ingle Junior and Primary School, a place of worship and Council drainage reserves and open space. Given the proximity to a range of services including public transport, the area presents an immediate opportunity for residential development including affordable housing. Priority: Medium Tasks 3.1.2.1 Undertake detailed investigations to determine the capability and appropriateness
of the site to accommodate additional allotments and dwellings at Walkleys Road corridor. Timeframe: January 2009 – April 2009 Responsibility: City of Salisbury (Property Division) Key Partners:
3.1.2.2 Undertake road closure at Walkleys Road corridor.
Timeframe: July 2009 – June 2010 Responsibility: City of Salisbury (Property Division) Key Partners:
3.1.2.3 Undertake a Concept design as part of the wider urban regeneration area.
Timeframe: January 2009 – June 2010 Responsibility: City of Salisbury (Property Division) Key Partners: Possible private sector
3.1.2.4 Implement actions identified in action plans for Walkleys Road corridor.
Timeframe: June 2010 onwards Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.1.3 Wright Road Transport Depot Site redevelopment 3.1.3.1 Input to the master-planning exercise of surplus State owned land at Yatala
prison and the Wright Road Transport Depot site. Timeframe: October 2008 – January 2009 Responsibility: Land Management Corporation Key Partners: City of Salisbury (Strategic Planning Department)
3.1.3.2 Undertake a Development Plan Amendment for the Transport Depot site..
Timeframe: March 2009 onwards Responsibility: Planning SA (possible Ministerial DPA) Key Partners: City of Salisbury (Strategic Planning Department)
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3.2 Housing Development on Surplus Council Land Goal To put in place policies and actions that facilitates the provision of quality, sustainable, affordable housing of diverse types. To provide a minimum of 15% of dwellings be ‘affordable’ as defined by the Affordable Housing Bill, while price range reflecting the Salisbury context. Definition Housing development that utilises surplus Council land. The Game Plan highlights opportunities that Council’s surplus land can be positioned to encourage urban regeneration. For example this can be achieved via providing open space to facilitate residential development on the condition that a portion of the parcel remains for community use, or an existing reserve in close proximity is enhanced to meet the increased need created by the development. Priority Actions: To date, the City of Salisbury has identified the following parcels of surplus land with housing development opportunities:
a. Dansie Crescent Reserve, Brahma Lodge b. Hoyle Green, Para Hills c. Diment Road Plantation, Salisbury North d. Lake Windemere, Salisbury North e. Ryans Road Reserve, Parafield Gardens (potential) f. Walpole Road, Bolivar / Parafield Gardens – MOSS Zone
Council is committed to facilitating the provision of ‘affordable’ housing and it is intended exceeding State’s target of 15% affordable housing provision where appropriate. In collaboration with Affordable Housing Innovations Unit and HomeStart Finance, the Council is currently developing models for providing affordable houses for first home buyers and retirement housing for the older people. Work to determine the appropriateness and capacity of the sites to provide ‘affordable housing’ and to develop models and concept plans are currently underway. 3.2.1 Dansie Crescent Reserve For the first home buyer affordable housing proposal, Dansie Crescent site is envisaged to provide a diverse range of housing types. Priority: High Tasks 3.2.1.1 Develop concept plans for affordable housing for first home buyers at Dansie
Crescent Reserve. Timeframe: commenced and completed October 2008 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.1.2 Implement actions identified in the action plan for Dansie Crescent Reserve.
Timeframe: October 2008 – December 2009 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
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3.2.2 Affordable housing for older residents at Hoyle Green As for retirement housing, Hoyle Green was selected as it is close to the Para Hills shops, library, Paddocks Community Centre and public transport so that the older people can be integrated into the wider community and will remain well-located to ‘age in place’. Hoyle Green has been identified as a potential site for this pilot to provide 100% affordable housing for the older people. Priority: High Tasks 3.2.2.1 Develop concept plans for adaptable and affordable housing for older residents at
Hoyle Green. Timeframe: January 2009 – June 2009 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.2.2 Implement actions identified in the action plan for Hoyle Green.
Timeframe: July 2009 – June 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.3 Housing development at Diment Road Plantation Priority: High 3.2.3.1 Develop concept plans for housing development at Diment Road Plantation.
Timeframe: January 2009 – July 2009 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.3.2 Undertake road closure at Diment Road Plantation.
Timeframe: January 2009 – January 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.3.3 Implement actions identified in the action plan for Diment Road Plantation.
Timeframe: February 2010 to December 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.4 Lake Windemere, Salisbury North Priority: High Tasks 3.2.4.1 Develop concept plans for housing development at Lake Windemere.
Timeframe: October 2008 – March 2009 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.4.2 Implement actions identified in the action plan for Lake Windemere.
Timeframe: April 2009 – February 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
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3.2.5 Housing development at Ryans Road Reserve Priority: High 3.2.5.1 Develop concept plans for housing development at Ryans Road.
Timeframe: January 2009 – July 2009 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.5.2 Undertake road closure.
Timeframe: July 2009 – July 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.5.3 Implement actions identified in the action plan for Ryans Road.
Timeframe: February 2010 to December 2010 Responsibility: City of Salisbury (Property Division) Key Partners: possible private sector
3.2.6 Walpole Road, Parafield Gardens Development Priority: Medium 3.2.6.1 Finalise investigations for potential rezoning of a portion of the existing MOSS
zoned land to residential at Walpole Road site. Timeframe: January 2009 – April 2009 Responsibility: City of Salisbury (City Projects) Key Partners: Planning SA
3.2.6.2 Undertake DPA to rezone a portion of the existing MOSS zoned land to
residential at Walpole Road site. Timeframe: January 2010 onwards Responsibility: City of Salisbury (Strategic Planning) Key Partners: Planning SA
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3.3 Broadacre Land Supply Goal To put in place policies and actions that facilitate the provision of a mix of medium-density, high-quality housing located close to employment that would best utilise land without compromising other strategic objectives while enhancing existing services and centres. To provide a minimum of 20% of dwellings be ‘affordable’ as defined by the Affordable Housing Bill in the Salisbury context. Definition Planning SA has identified New Growth Investigation Areas in outer Metropolitan area to secure 25 year rolling supply of broadacre land through carefully extending urban boundary. Assessment criteria for potential future growth are based on the following principles:
• Proximity to existing transport corridors, particularly rail; • Minimal impact on high-value agricultural and tourism lands and high
conservation value native vegetation; and • Proximity to major employment lands.
Based on the above criteria, an area west of Port Wakefield Road presents opportunity for the City to accommodate future growth. Stretching from Saltfields to the South and St Kilda to the north, the area is adjacent to major transport corridor and strategically located between major employment lands, namely, GEP, LeFevre Peninsula, Gillman and MIP. The proposed the Northern Connector would provide enhanced access to these employment lands. A planning study is currently underway to determine the route. Given the potential scale of the development, opportunity exists to provide mass transit public transport linking the area to the employment lands. Priority Actions: 3.3.1 Future urban development Cheetham saltfields site Lend Lease / Ridley Joint Venture are investigation in developing southern part of this area for residential purposes, majority of which is currently zoned MFP and the other part is located outside the Urban Boundary (red line as shown in the map). There are significant environmental challenges and complex land use issues that will need to be addressed when considering the feasibility and master planning of the area. Potential yield from the southern part is 12,000 dwellings
4.
Priority: High
4 Potential yields are indicative only. It will depend on the site context and engagement process.
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Figure 7: Cheetham Saltfileds site
Tasks 3.3.1.1 Undertake a feasibility study for Cheetham saltfields site.
Timeframe: August 2009 – June 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Delfin Lend Lease / Ridley, Planning SA.
3.3.1.2 Undertake a master-planning exercise for Cheetham saltfields site.
Timeframe: October 2009 – August 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Delfin Lend Lease / Ridley, Planning SA.
3.3.2 Undertake DPA for Cheetham saltfields site. (subject to feasibility)
Timeframe: October 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Delfin Lend Lease / Ridley, Planning SA.
3.3.3 Undertake a feasibility study for the northern part of west of Port Wakefield
Road in conjunction with the Cheetham saltfields site In addition to the above, potential exist to investigate the appropriateness and suitability of the area immediately south of St Kilda Township to north of Globe Derby Park. Once the proposed route for the Northern Connector is defined, it would provide more certainties in the future opportunities of the area. Unlike the southern part, this area is entirely located outside of the Urban Boundary. Similarly to the southern part, there are significant environmental challenges and complex land use issues that need to be
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addressed when considering the feasibility of the area. It is envisaged that long planning lead time is required. There is a potential to integrate development with the southern part of west of Port Wakefield Road, Cheetham Saltfields site. Potential yield from the northern part is 21,000 dwellings
5.
Priority: High 3.3.4 Undertake a feasibility study for the northern part of west of Port Wakefield Road
in conjunction with the Cheetham saltfields site. Timeframe: August 2009 – December 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Delfin Lend Lease / Ridley, Planning SA.
5 Potential yields are indicative only. It will depend on the site context and engagement process.
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Growth Policy Area 4: Other Growth Areas / Sites for Investigation Goal To investigate the suitability and feasibility of other areas / sites for future growth. Definition Residentially zoned areas with opportunities for densification and non-residential lands within the City which may warrant further investigations to identify opportunities for rezoning. Priority Actions:
4.1 Continue negotiation to consider relocation of the airport
Parafield Airport is one of the Australia’s inner city commercial airports. The Airport was the original domestic airport facility for Adelaide prior to the move of this facility to the present site at West Beach in the 1950’s. The main purpose of the airport now is for private and small commercial operators and flight training and commercial development along Main North Road, which does not reflect local planning. The rapid growth of Salisbury, with increasing demand for further residential development coupled with the impact airport activity is having on nearby residential areas, the Salisbury Council has been discussing the possible relocation of the airport with the intent of realising the land for residential development integrating with Mawson Lakes development. A portion of land is about to be developed for industry.
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Potential yield is 7,000 dwellings6. Priority: Ongoing 4.1.1 Continue negotiation to consider relocation of the airport.
Timeframe: Ongoing Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Adelaide Airport Limited, State & Federal Governments.
Other areas / sites that require further investigation to determine the suitability and feasibility to accommodate growth are listed below. Review of minimum allotment sizes: 4.2 Increase residential densities in parts of Salisbury Heights Priority: High Tasks 4.2.1 Undertake a privately funded DPA to increase residential densities in parts of
Salisbury Heights. Timeframe: commenced, expected completion July 2009 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Planning SA, private owners.
4.3 Increase density (reduce minimum allotment size) at the Residential (Para
Escarpment) zone to accommodate additional allotments / dwellings Priority: Medium Tasks
4.3.1 Undertake preliminary investigations to determine the capability and appropriateness of the Residential (Para Escarpment) zone to accommodate additional allotments / dwellings.
Timeframe: Commence January 2010 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Planning SA.
Rezoning of non-residential lands: 4.4 Undertake preliminary investigations to identify opportunities for mixed use
developments in certain Neighbourhood Centre and Local Centres As recommended in the Centres Review by Tutte & URPS (2007), the following centres will also be reviewed to identify opportunities for mixed use development opportunities which would include medium density housing. Priority: Medium.
• Gloucester Street Centre, Salisbury East • Gregory Street Centre, Brahma Lodge • Paralowie Village Shopping Centre, Paralowie • Daphne Road Centre, Salisbury East • Amanda Street / Beverly Avenue, Salisbury
6 Potential yields are indicative only. It will depend on the site context and engagement process.
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• The Crescent Shopping Centre, Salisbury Downs • Thompson Avenue Shops, Salisbury Downs • Windsor Avenue / Robert Court, Para Hills.
4.5 Undertake preliminary investigations to identify opportunities for mixed land uses of
Neighbourhood Centre and Local Centre zoned area such as medium density housing.
Timeframe: Commence January 2010 Responsibility: City of Salisbury (Strategic Planning Department) Key Partners: Planning SA.
Other long term potential sites for rezoning:
(a) Heyne’s Nursery site – Rural (Aircraft Noise) Zone, Burton. Low Priority. (b) Boral Quarry (part) - Barker Street - Extractive Zone, Salisbury East. Low Priority.
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4.3 COMPILATION OF GROWTH ACTIONS Based on the high to medium priority sites, Table 1 below indicates potential housing yields and associated population carrying capacity of residential developments. The Growth timeframe reflects the likelihood of time required to realise the full extent of growth opportunities. Over the next 20 years, it is expected that the City will have the capacity to grow by 38,400 people (102,400, including speculative outcomes over the next 30 years). This equates to Salisbury absorbing 15% of a total State’s population growth target (40% in speculative outcomes). This level of growth also has a significant long term financial benefit to the Council which in turn, increases our capacity to maintain or even enhance the level of services provided to the community. Figure 7 on the next page shows all potential residential growth areas / sites outlined in this Growth Action Plan. On the following page represents associated growth actions and recommended work program (Table 2).
Table 1: Potential Residential & Population Yields for High to Medium Priority Sites
Area Potential Housing
Yield Potential Population
Growth Timeframe
Likely / Probable Outcomes Cheetham saltfield site 12,000 23,000* Over 10 years Penfield 600 1,400** Over 5 years Salisbury Town Centre 2,700 3,500*** Over 20 years Urban regeneration Ingle Farm District Centre 3,800 8,700** Over 20 years Other areas 800 1,800** Over 20 years Speculative Outcomes Parafield Airport 7,000 16,000** Over 10 years West of Pt Wakefield Rd (outside of Urban Boundary)
21,000 48,000** Over 20 years
NB: *Household size of 1.9 is used for calculation
**Household size of 2.3 is used for calculation ***Household size of 1.3 is used for calculation
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Figure 7: Residential development scenario
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Table 2: Growth Actions & Recommended Work Program
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5.0 CONCLUSION
This Growth Action Plan presents key areas of action which responds to the challenges and opportunities presented by a structural ageing of population and drivers of growth for the next five years. The actions acknowledge and reflect the diverse needs of our current and future residents. That diversity covers the spectrum of different age cohorts, cultural backgrounds, capacities, needs and aspirations. The policy directions and actions sit within the framework of Councils’ Living City Strategy and reflect the capacity of the City of Salisbury to be both responsive and proactive, in a coordinated manner and in partnership with other levels of government and private sector, to the issues associated with accommodating population growth in order to maximise outcomes for the community. The initiatives herein are based on the premise that Council does not have total control over the service provision and ensuring delivery of diverse and affordable housing. Where such provision is appropriate and feasible, Council will strive to undertake that responsibility. In other circumstances, Council will aim to influence directions and actions of other government and private sectors in accordance with its vision and strategic directions for the City and the Living City Strategy’s focus on mobilising local resources to increase community capacity, as opposed to undertaking direct service provision. A key role for Council is to act in an advocacy capacity with other agencies and levels of government to ensure that the needs and concerns of residents are reflected in local level policy direction and initiatives. The policies and actions outlined here are aligned with State and Federal agendas and policy directions, as well as the goals and targets of the South Australian Strategic Plan and the State Government’s Planning Strategy for Metropolitan Adelaide and recently released planning reform key agendas. In this way, it provides an opportune framework for collaboration with other levels of government to avoid duplication, maximise resources and achieve mutually optimal outcomes, while ensuring that Council’s own vision and core objectives for the community are reflected in the actions and programs implemented.
6.0 REFERENCES Australian Bureau of Statistics (2007). 2006 Census of Population and Housing. id (2008). City of Salisbury: Population and household forecasts. Planning and Development Review Steering Committee (2008). Report to the Minister for Urban Development and Planning from the Planning and Development Review Steering Committee for consideration by Cabinet. Adelaide: Planning SA. Planning SA (2006). Understanding residential densities: A pictorial handbook of Adelaide examples. Adelaide: Planning SA.
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7.0 APPENDICES
7.1 SITE PLANNING & DEVELOPMENT FRAMEWORK Stage 1: Research
1. Define a study area 2. Review local context
• Population profile • Land use, ownership and control • Transport (vehicle traffic, personal mobility & accessibility) • Open space • Service provision (CoS & other) • Planning policy and regulations
3. Identify opportunities & constraints Stage 2: Planning
1. Define a site 2. Define a vision & specific objectives for the site
• Additional dwellings • New access routes • New or improved services • Types & floor spaces of activities
3. Develop planning, design principles and targets • Infrastructure and services (CoS & other) • Water management • Transport • Urban design • Open space • Community safety / crime prevention • Employment & economic development • Waste management • Energy conservation • Biodiversity conservation
7. Undertake a structure planning process (including development of growth scenarios)
• Proposed locations for various forms of development • Proposed built form of development • Proposed transport networks and connection to wider strategic networks • Proposed changes to physical infrastructure & services • How public realm will be enhanced • How interface issues with surrounding areas will be addressed • How the development contributes to employment & economic
development • How the development demonstrate environmentally sustainable practice • How the development contributes to social and cultural development
8. Assess feasibility of growth scenarios 9. Document agreed development process by developing an action plan
• Responsibilities, time lines, resources, indicative costings & priorities • Potential funding sources • Whether any Development Plan Amendments are required
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• Success indicators and reporting mechanisms Stage 3: Implementation
10. Implement actions identified in action plans Consultation It is envisaged that stakeholder and community engagement will be undertaken. In accord with the organisational guideline for community engagement (currently under development), a separate engagement framework will be developed for each site to undertake the effective site planning and development process.
• Identify key stakeholders and roles they play in the planning process • Develop engagement framework (including scope, audience, engagement
methods & schedules) • Invite stakeholder input • Provide feedback to stakeholders.
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7.2 ASSUMPTIONS USED FOR PROJECTING DWELLING YIELDS Existing vacant lands within residential zones An estimate of the total area was derived and divided by gross density of 12-15 dwelling unit per hectare (du/ha). TODs & Activity Centre Developments Based on Planning SA’s position, a 800 metre radius of a District Centre was subject for densification. Potential infill opportunities assumed in this document includes only existing residential sites with:
• allotments greater than 500 square metres • dwellings built after 1950
All other sites have been excluded. The number of additional dwellings from potential infill opportunities has been calculated assuming only a 50% redevelopment rate. Average net density7 scenarios used to project dwelling yields are as follows:
• Within 100m from DCe: High density (Net density of 89 du/ha) • Between 101-200m from DCe: Medium density (Net density of 59 du/ha) • Between 201-400m from DCe: Medium density (Net density of 37 du/ha)
Typical built form may include up to 3 storey row dwelling
• Between 401-800m from DCe: Medium density (Net density of 37 du/ha) Typical built form may include single storey row
dwelling & 2 or more storeys depending on site context
Infill redevelopment Historical redevelopment rates (id 2008) were used to project dwelling yields for established suburbs such as Pooraka and Valley View. These rates were doubled to reflect the Council’s intention to target urban regeneration. Rezoning of non-residential lands Individual site analysis was undertaken. Gross density ranging from 15-25 du/ha was used for calculation.
7 Definitions on densities were based on Planning SA (2006)
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