DARWIN CITY COUNCIL EIGHTY-FIFTH ORDINARY MEETING OF … · 9.1 Photo Slideshow - 70th Anniversary of the Bombing of Darwin Events Common No. 1855364 Mr Liam Carroll from Council

ORDINARY COUNCIL MEETING - OPEN SECTION PAGE 2ND COU2/1 TUESDAY, 28 FEBRUARY 2012

Eighty-Fifth Meeting of the Twentieth Council – Tuesday, 28 February 2012 PAGE 2nd COU2/1

Reports, recommendations and supporting documentation can be accessed via the City of Darwin Council Website at www.darwin.nt.gov.au, at Council Public Libraries or contact Linda Elmer on (08) 89300 670.

DARWIN CITY COUNCIL

EIGHTY-FIFTH ORDINARY MEETING OF THE TWENTIETH COUNCIL

TUESDAY, 28 FEBRUARY 2012 MEMBERS: The Right Worshipful, Lord Mayor, Mr G R Sawyer (Chairman); Member J

D Bailey; Member R T Dee; Member R K Elix; Member H I Galton; Member R M Knox; Member G A Lambert; Member R Lesley; Member F P Marrone; Member A R Mitchell; Member K M Moir; Member J L Sangster; Member H D Sjoberg.

OFFICERS: Chief Executive Officer, Mr B P Dowd; General Manager Corporate

Services, Mr F Crawley; General Manager Infrastructure, Mr L Cercarelli; General Manager Community & Cultural Services, Mr J Banks; Executive Manager, Mr M Blackburn; Committee Administrator, Ms L Elmer.

GUEST: Mr Liam Carroll will be in attendance from 5.15pm to present to Council a

photo slideshow of the 70th Anniversary of the Bombing of Darwin events

Enquiries and/or Apologies: Linda Elmer E-mail: [email protected] PH: 8930 0670 * * * I N D E X * * * PAGE 1 ACKNOWLEDGEMENT OF COUNTRY ......................................................4 2 THE LORD’S PRAYER ................................................................................4 3 MEETING DECLARED OPEN .....................................................................4 4 APOLOGIES AND LEAVE OF ABSENCE ..................................................4 5 DECLARATION OF INTEREST OF MEMBERS AND STAFF.....................4 6 CONFIRMATION OF MINUTES OF PREVIOUS MEETING 6.1 Ordinary Council Meeting 14/02/12 ..........................................5

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7 BUSINESS ARISING FROM THE MINUTES OF PREVIOUS MEETING 7.1 Business Arising ...........................................................................................5 8 MATTERS OF PUBLIC IMPORTANCE .......................................................5 9 DEPUTATIONS AND BRIEFINGS 9.1 Photo Slideshow - 70th Anniversary of the Bombing of Darwin Events .......5 10 PUBLIC QUESTION TIME ...........................................................................5 11 CONFIDENTIAL ITEMS 11.1 Closure to the Public for Confidential Items..................................................6 11.2 Moving Open Items Into Confidential ........................................................6 11.3 Moving Confidential Items Into Open ........................................................6 12 PETITIONS...................................................................................................7 13 NOTICES OF MOTION ................................................................................7 14 COMMITTEE REPORTS 14.1 Community & Cultural Services 13/02/12 ........................8 14.2 Corporate & Economic Development 21/02/12 ......................13 14.3 Environment & Infrastructure 20/02/12 ......................17 15 OFFICERS REPORTS 15.1 Creating Places for People: An Urban Design Protocol for Australian Cities.....................................................................................21 15.2 Northern Territory of Australia Proposal to Amend Northern Territory Planning Scheme PA 2011/0993 Dual Occupancy.....................................54

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16 INFORMATION ITEMS AND CORRESPONDENCE RECEIVED 16.1 2012 National General Assembly of Local Government – Discussion Paper.....................................................................................83 17 REPORTS OF REPRESENTATIVES.......................................................102 18 QUESTIONS BY MEMBERS ...................................................................102 19 GENERAL BUSINESS .............................................................................102 20 DATE, TIME AND PLACE OF NEXT ORDINARY COUNCIL MEETING.102 21 CLOSURE OF MEETING TO THE PUBLIC.............................................102 22 ADJOURNMENT OF THE MEETING AND MEDIA LIAISON..................102

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1 ACKNOWLEDGEMENT OF COUNTRY 2 THE LORD’S PRAYER 3 MEETING DECLARED OPEN 4 APOLOGIES AND LEAVE OF ABSENCE 4.1 Apologies THAT the apology from Member F P Marrone, be received and a Leave of Absence be granted. DECISION NO.20\() (28/02/12) 4.2 Leave of Absence Granted THAT it be noted that Member R Lesley is an apology due to a Leave of Absence being previously granted on 31 January 2012 for the period 22 - 29 February 2012. DECISION NO.20\() (28/02/12) 4.3 Leave of Absence Requested THAT a Leave of Absence be granted for Member F P Marrone for the period 26 February 2012 to 4 March 2012. DECISION NO.20\() (28/02/12) 5 DECLARATION OF INTEREST OF MEMBERS AND STAFF

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6 CONFIRMATION OF MINUTES OF PREVIOUS MEETING 6.1 Confirmation of the Previous Ordinary Council Meeting Common No. 1955119 THAT the tabled minutes of the previous Ordinary Council Meeting held on 14 February 2012, be received and confirmed as a true and correct record of the proceedings of that meeting. DECISION NO.20\() (28/02/12) 7 BUSINESS ARISING FROM THE MINUTES OF PREVIOUS MEETING 7.1 Business Arising 8 MATTERS OF PUBLIC IMPORTANCE 9 DEPUTATIONS AND BRIEFINGS 9.1 Photo Slideshow - 70th Anniversary of the Bombing of Darwin Events Common No. 1855364 Mr Liam Carroll from Council will be in attendance from 5.15 m to present to Council a photo slideshow of the Bombing of Darwin events. THAT the presentation in relation to the Photo Slideshow - 70th Anniversary of the Bombing of Darwin events, be received and noted. DECISION NO.20\() (28/02/12) 10 PUBLIC QUESTION TIME

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11 CONFIDENTIAL ITEMS 11.1 Closure to the Public for Confidential Items Common No. 1944604 THAT pursuant to Section 65 (2) of the Local Government Act and Regulation 8 of the Local Government (Administration) Regulations the meeting be closed to the public to consider the Confidential matters referred from Committees including Confidential Committee Items, and the following Items:-

Item Regulation Reason C24.1 8(c)(ii) Information that would, if publicly disclosed, be

likely to prejudice the maintenance or administration of the law.

C28.1 8(c)(iv) Information that would, if publicly disclosed, be

likely to prejudice the interests of the council or some other person.

C29.1 8(c)(i) Information that would, if publicly disclosed, be

likely to cause commercial prejudice to, or confer an unfair commercial advantage on, any person.

DECISION NO.20\() (28/02/12) 11.2 Moving Open Items Into Confidential 11.3 Moving Confidential Items Into Open

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12 PETITIONS Nil 13 NOTICES OF MOTION Nil

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14 COMMITTEE REPORTS 14.1 COMMUNITY & CULTURAL SERVICES (13/02/12) Presentation of Report by Chairman - Member R Lesley Recommendations from the Community & Cultural Services Committee Meeting held on Monday, 13 February 2012 1 Darwin Entertainment Centre 2010/2011 Independent Audit Report Document No. 2142640 Common No. 2118668 THAT the incoming Darwin Entertainment Centre 2010/2011 Independent Audit Report, Document Number 2142640, be received and noted. DECISION NO.20\() (28/02/12) 2 Darwin Entertainment Centre 2011/2012 Second Quarter Funding Reports October to December 2011 Document No. 2168110 ommon No. 2118668 THAT the incoming Darwin Entertainment Centre 2011/2012 Second Quarter Funding Reports October to December 2011, Document Number 2168110, be received and noted. DECISION NO.20\() (28/02/12) 3 Incoming Encouragement Letter from Mr Andrew Webb from St Louis

Missouri Document No. 2169027 (05/01/12) Common No. 2169027

THAT the Encouragement Letter from Mr Andrew Webb, from St Louis, Missouri dated 5th January 2012 in respect to Darwin’s flooding, Document Number 2169027, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.1 COMMUNITY & CULTURAL SERVICES (13/02/12) Presentation of Report by Chairman - Member R Lesley Recommendations from the Community & Cultural Services Committee Meeting held on Monday, 13 February 2012 4 Community & Cultural Services Team Report – November, December 2011 and January 2012 Report No. 12C0011 KH:es (13/02/12) Common No. 1733166 THAT Report Number 11C001 KH:es entitled, Community & Cultural Services Team Report – November, December 2011 & January 2012, be received and noted. DECISION NO.20\() (28/02/12) 5 Regulatory Services Update November 2011, December 2011 and January 2012 Report No. 12C0005 DN:mrg (13/02/12) Common No. 1330602 THAT Report Number 12C0005 DN:mrg entitled, Regulatory Services Update November 2011, December 2011 and January 2012, be received and noted. DECISION NO.20\() (28/02/12) 6 Libraries Information Update for November, December 2011 and January 2012 Report No. 12P0001 KC:md (13/02/12) Common No. 1943023 THAT Report Number 12P0001 entitled, Libraries Information Update for November, December 2011 and January 2012, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.1 COMMUNITY & CULTURAL SERVICES (13/02/12) Presentation of Report by Chairman - Member R Lesley Recommendations from the Community & Cultural Services Committee Meeting held on Monday, 13 February 2012 7 Dili Sister City Community Committee Meeting - 8 November 2011 Report No. 12C0006 HB:es (13/02/12) Common No. 2169279 THAT Report Number 12C0006 HB:es entitled, Minutes of the Dili Sister City Community Committee Meeting – 8 November 2011, be received and noted. DECISION NO.20\() (28/02/12) 8 Ambon Sister City Community Committee Meeting - 10 November 2011 Report No. 12C007 HB:es (16/01/12) Common No. 2169505 THAT Report Number 12C007 HB:es entitled, Sister City Community Committee Minutes - Ambon 11 November 2011, be received and noted. DECISION NO.20\() (28/02/12) 9 Haikou Sister City Community Committee Meeting - 14 November 2011 Report No. 12C0008 HB:es (17/01/12) Common No. . 2169552 THAT Report Number 12C0008 HB:es entitled, Sister City Community Committee Minutes – Haikou 14 November 2011, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.1 COMMUNITY & CULTURAL SERVICES (13/02/12) Presentation of Report by Chairman - Member R Lesley Recommendations from the Community & Cultural Services Committee Meeting held on Monday, 13 February 2012 10 Sponsorship Request for Oz Fest: Australia’s Cultural Festival in India 2012 Report No. 12C0001 HB:es (13/02/12) Common No. 2129138 A. THAT Report Number 12C0001 HB:es entitled, Sponsorship Request for Oz Fest:

Australia’s Cultural Festival in India 2012 be received and noted. B. THAT Council decline the request for sponsorship for Oz Fest: Australia’s Cultural

Festival in India 2012. DECISION NO.20\() (28/02/12) 11 Request for Sister City Relationship Between Darwin and Dongfang, PR China; Yeosu, Republic of Korea; Davao, Philippines; and Tralee, Republic of Ireland Report No. 12C0012 HB:es (13/02/12) Common No. 1668592 A. THAT Report Number 12C0012 HB:es entitled, Request for Sister City

Relationship between Darwin and Dongfang, PR China; Yeosu, Republic of Korea; Davao, Philippines; and Tralee, Republic of Ireland, be received and noted.

B. THAT Council seek affirmation from the Haikou Office of Foreign Affairs for the

establishment of a Friendship Agreement with Dongfang, Peoples Republic of China, based on the Gull Force memorial at Lao Ou.

C. THAT Council establish a Friendship Agreement with Dongfang, Peoples Republic

of China, based on the Gull Force memorial at Lao Ou. D. THAT Council decline the invitation to establish a sister city relationship with

Yeosu, Republic of Korea. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.1 COMMUNITY & CULTURAL SERVICES (13/02/12) Presentation of Report by Chairman - Member R Lesley Recommendations from the Community & Cultural Services Committee Meeting held on Monday, 13 February 2012 12 Appreciation to the Alderman of the 20th Council THAT the General Manager Community & Cultural Services noted that this was the last Community & Cultural Services Committee meeting of the 20th Council and expressed his appreciation for the contribution of the Elected Members. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.2 CORPORATE & ECONOMIC DEVELOPMENT (21/02/12) Presentation of Report by Chairman - Member K M Moir Recommendations from the Corporate & Economic Development Committee Meeting held on Tuesday, 21 February 2012 1 Corporate Services Monthly Report – November 2011 to January 2012 Report No. 12A0004 (10/02/12) Common No. 339108 THAT Report Number 12A0004 entitled, Corporate Services Monthly Report – November 2011 to January 2012 be received and noted. DECISION NO.20\() (28/02/12) 2 Listing of Cheques/EFT Payments – November 2011 Report No. 12A0005 (10/02/12) Common No. 339125 THAT Report Number 12A0005 entitled, Listing of Cheques / EFT Payments – November 2011 be received and noted. DECISION NO.20\() (28/02/12) 3 Listing of Cheques/EFT Payments – December 2011 Report No. 12A0006 (10/02/12) Common No. 339125 THAT Report Number 12A0006 entitled, Listing of Cheques / EFT Payments – December 2011 be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.2 CORPORATE & ECONOMIC DEVELOPMENT (21/02/12) Presentation of Report by Chairman - Member K M Moir Recommendations from the Corporate & Economic Development Committee Meeting held on Tuesday, 21 February 2012 4 Listing of Cheques/EFT Payments – January 2012 Report No. 12A0007 (10/02/12) Common No. 339125 THAT Report Number 12A0007 entitled, Listing of Cheques / EFT Payments – January 2012 be received and noted. DECISION NO.20\() (28/02/12) 5 Financial Report to Council – November 2011 Report No. 12A0008 (10/02/12) Common No. 339122 THAT Report Number 12A0008 entitled, Financial Report to Council – November 2011, be received and noted. DECISION NO.20\() (28/02/12) 6 Financial Report to Council – December 2011 Report No. 12A0009 (10/02/12) Common No. 339122 THAT Report Number 12A0009 entitled, Financial Report to Council – December 2011, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.2 CORPORATE & ECONOMIC DEVELOPMENT (21/02/12) Presentation of Report by Chairman - Member K M Moir Recommendations from the Corporate & Economic Development Committee Meeting held on Tuesday, 21 February 2012 7 Financial Report to Council – January 2012 Report No. 12A0010 (10/02/12) Common No. 339122 THAT Report Number 12A0010 entitled, Financial Report to Council – January 2012, be received and noted. DECISION NO.20\() (28/02/12) 8 Monthly on Street and Off Street Parking Statistics – November 2011 Report No. 12A0011 (10/02/12) Common No. 376351 THAT Report Number 12A0011 entitled, Monthly On-Street and Off-Street Parking Statistics – November 2011, be received and noted. DECISION NO.20\() (28/02/12) 9 Monthly on Street and Off Street Parking Statistics – December 2011 Report No. 12A0012 (10/02/12) Common No. 376351 THAT Report Number 12A0012 entitled, Monthly On-Street and Off-Street Parking Statistics – December 2011, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.2 CORPORATE & ECONOMIC DEVELOPMENT (21/02/12) Presentation of Report by Chairman - Member K M Moir Recommendations from the Corporate & Economic Development Committee Meeting held on Tuesday, 21 February 2012 10 Monthly on Street and Off Street Parking Statistics – January 2012 Report No. 12A0013 (10/02/12) Common No. 376351 THAT Report Number 12A0013 entitled, Monthly On-Street and Off-Street Parking Statistics – January 2012, be received and noted. DECISION NO.20\() (28/02/12) 11.1 Appreciation to the Alderman of the 20th Council THAT the General Manager Corporate Services noted that this was the last Corporate Services Committee meeting of the 20th Council and expressed his appreciation for the contribution of the Elected Members. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.3 ENVIRONMENT & INFRASTRUCTURE (20/02/12) Presentation of Report by Chairman - Member R K Elix Recommendations from the Environment & Infrastructure Committee Meeting held on Monday, 20 February 2012 1 Petition – Footpath Construction in Stedcombe Street, Alawa Report No. 12TS0033 ND:KB (20/02/12) Common No. 2061447 A. THAT Report Number 12TS0033 ND:KB entitled, Petition - Footpath Construction

in Stedcombe Street, Alawa, be received and noted. B. THAT Council approve the construction of a footpath on the odd numbered side of

Stedcombe Street, Alawa, as indicated in Attachment B of Report Number 12TS0033 ND:KB entitled, Petition - Footpath Construction in Stedcombe Street, Alawa.

C. THAT Council write to the petition organiser advising of Council’s decision to

construct the footpath on the odd numbered side of Stedcombe Street, Alawa, for the reasons include, but are not limited to;

i) The footpath will improve pedestrian networks to benefit the broader local

community. ii) The footpath location is adjacent to Alawa Primary School, the Nemarluk

School and connects to the Alawa Shopping precinct. iii) A school crossing is located on the Stedcombe Street which is currently

only accessible from one direction. iv) The existing asphalt footpaths in front of properties are in a poor condition.

DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.3 ENVIRONMENT & INFRASTRUCTURE (20/02/12) Presentation of Report by Chairman - Member R K Elix Recommendations from the Environment & Infrastructure Committee Meeting held on Monday, 20 February 2012 2 Condition of Darwin Council Roads – Short and Long Term Planning Report No. 12TS0032 ND:kb (20/02/12) Common No. 212477 A. THAT Report Number 12TS0032 ND:KB entitled, Condition of Darwin City Council

Roads – Short and Long Term Planning, be received and noted. B. THAT a budget of $1,568,175 be put forward for 2012/13 budget considerations,

with an additional 5% plus CPI to be considered for the 2013/14 and 2014/15 budgets as outlined in Report Number 12TS0032 ND:KB entitled, Condition Of Darwin City Council Roads – Short and Long Term Planning.

DECISION NO.20\() (28/02/12) 3 Infrastructure Maintenance – December 2011 - Quarterly Report Report No. 12TS0002 KS:nf (20/02/12) Common No. 1887505 THAT Report Number 12TS0002 KS:nf entitled, Infrastructure Maintenance – December 2011 Quarterly Report, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.3 ENVIRONMENT & INFRASTRUCTURE (20/02/12) Presentation of Report by Chairman - Member R K Elix Recommendations from the Environment & Infrastructure Committee Meeting held on Monday, 20 February 2012 4 Infrastructure – Design, Plannng & Projects – December 2011 Quarterly Report Report No. 12TS007 DL:lm (20/02/12) Common No. 1832896 THAT Report Number 12TS007 DL:lm entitled, Infrastructure – Design, Planning & Projects – December 2011 Quarterly Report, be received and noted. DECISION NO.20\() (28/02/12) 5 Asset Management – Quarterly Report – December 2011 Report No. 12TS0005 ND:kb (20/02/12) Common No. 1832912 THAT Report 12TS0005 ND:kb entitled, Asset Management – Quarterly Report – December 2011, be received and noted. DECISION NO.20\() (28/02/12) 6 Waste Management and Recycling – December 2011 Quarterly Report Report No. 12TS0021 SH:rc (20/02/12) Common No. 1738353 THAT Report Number 12TS0021 SH:rc entitled, Waste Management and Recycling – December 2011 Quarterly Report, be received and noted. DECISION NO.20\() (28/02/12)

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14 COMMITTEE REPORTS 14.3 ENVIRONMENT & INFRASTRUCTURE (20/02/12) Presentation of Report by Chairman - Member R K Elix Recommendations from the Environment & Infrastructure Committee Meeting held on Monday, 20 February 2012 7 Climate Change & Environment Team Quarterly Report – January 2012 Report No. 12TS0019 SF:nj (20/02/12) Common No. 1792647 THAT Report Number 12TS0019SF:nj entitled Climate Change & Environment Team Quarterly Report, be received and noted. DECISION NO.20\() (28/02/12) 8 Coastal Harbour Erosion Management Plan – Update Number 1 Report No. 12TS0008 DC:lm (20/02/12) Common No. 2072884 THAT Report number 12TS0008 DC:lm entitled, Coastal Harbour Erosion Management Plan – Update Number 1, be received and noted. DECISION NO.20\() (28/02/12)

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15 OFFICERS REPORTS 15.1 Creating Places for People: An Urban Design Protocol for Australian Cities Report No. 12TS0029DL:jd (28/0212) Common No. 2157538 Report Number 12TS0029DL:jd attached.

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2ND ORDINARY COUNCIL MEETING/OPEN AGENDA ITEM: 15.1

SUBJECT: CREATING PLACES FOR PEOPLE: AN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES

REPORT No. 12TS0029DL:jd COMMON No. 2157538 Date: 28/02/2012

Presenter: Manager Design, Planning & Projects, Drosso Lelekis Approved: General Manager – Infrastructure, Luccio Cercarelli PURPOSE The purpose of this report is to provide information on the Australian Government’s recent (November 2011) release of the Creating Places for People: An Urban Design Protocol for Australian Cities. LINK TO STRATEGIC PLAN The issues addressed in this Report are in accordance with the following Goals/Strategies of the Darwin City Council 2008 – 2012 as outlined in the ‘Evolving Darwin Strategic Directions: Towards 2020 and Beyond’:- Goal 1: Achieve Effective Partnerships and Engage in Collaborative

Relationships Outcome 1.1: Improve relations with all levels of Government Key Strategies1.1.4: Play a strategic role in the planning and developmental

processes that impact Darwin KEY ISSUES A key action arising from the National Urban Policy was the development of

an urban design protocol to encourage the highest standard of urban design in out cities.

The Australian Government recently released the Creating Places for People: An Urban Design Protocol for Australian Cities (the Protocol).

The Urban Design Protocol will be a reference for Council’s ongoing strategic and statutory planning role.

RECOMMENDATIONS THAT Report Number 12TS0029 DL:jd entitled Creating Places for People: An Urban Design Protocol for Australian Cities be received and noted.

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PAGE: 2 REPORT NUMBER: 12TS0029DL: jd SUBJECT: CREATING PLACES FOR PEOPLE: AN URBAN DESIGN PROTOCOL

FOR AUSTRALIAN CITIES BACKGROUND The Australian Government Our Cities, Our Future – a national urban policy for a productive, sustainable and liveable future (the National Urban Policy), outlines the role of the Australian Government in promoting better outcomes in Australia’s major cities through direct investment or in partnership with key stakeholders. It is the Australian Government’s strategic policy framework for the 18 major cities of Australia (including Darwin) and sets out the role of the Australian Government in making our cities “work better”. A key action arising from the National Urban Policy was the development of an urban design protocol to encourage the highest standard of urban design in our cities. The Australian Government has recently released the Creating Places for People: An Urban Design Protocol for Australian Cities (the Protocol). This “..is a national language for urban design…” developed in collaboration with a number of stakeholders, including industry and government. A stated aim of the Protocol is to”…(articulate) principles for promoting best practice urban design outcomes in the development of our cities, communities and places.” A copy of the Protocol is included as Attachment A to this report. The Council of Australian Governments (COAG) agreed to implement reforms to capital city strategic planning systems “to ensure Australian cities are globally competitive, productive, sustainable, liveable and are well placed to meet future challenges and growth.” Amongst the criteria set by COAG is “To encourage world-class urban design and architecture.” The Protocol responds to this criterion by “..providing a framework to identify, implement, measure and improve best practice in urban design.” Concise summaries of the Protocol and the National Urban Policy are provided at Appendix A and B within Attachment A respectively. DISCUSSION It is stated in the Protocol that “Urban design is concerned with the arrangement, appearance and function of our suburbs, towns and cities. It is both a process and an outcome of creating localities in which people live, engage with each other, and the physical place around then.” Urban design can operate both on the macro scale (e.g. planning, zoning, transport and infrastructure) and the micro scale (e.g. street furniture and lighting) and involves many disciplines (including planning, development, architecture, landscape architecture, engineering, law and finance). “When fully integrated into policy and planning systems, urban design can inform land use planning, infrastructure, built form and even the socio-demographic mix of a place.”

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FOR AUSTRALIAN CITIES Urban design can influence the following: The economic success and socio-economic composition of a locality; The physical scale, space and ambience of a place; and The social and cultural nature of a locality.

The Protocol adds, “Although urban design is often delivered as a specific “project”, it is in fact a long-term process that continues to evolve over time” and “ It is this layering of building and infrastructure types, natural ecosystems, communities and cultures that give places their unique characteristics and identities.” “The objective of the urban design protocol is to encourage the highest standard of urban design across all parts of our suburbs, towns and cities.” The Goals and associated Objectives of the National Urban Policy are provided in Table 1 below.

Table 1: National Urban Policy Goals and Objectives

GOALS OBJECTIVES A. PRODUCTIVITY 1. Improve labour and capital

productivity 2. Integrate land use and infrastructure 3. Improve the efficiency of urban

infrastructure B. SUSTAINABILITY 4. Reduce greenhouse gas emissions

and improve air quality 5. Manage our resources sustainably 6. Increase resilience to climate change,

emergency events and natural hazards

C. LIVEABILITY 7. Facilitate the supply of appropriate

mixed income housing 8. Support affordable living choices 9. Improve accessibility and reduce

dependence on private vehicles 10. Support community wellbeing D. GOOD GOVERNANCE 11. Improve the planning and

management of our cities 12. Streamline administrative processes 13. Evaluate progress

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FOR AUSTRALIAN CITIES The Protocol was developed over a 2 year period as the result of collaboration between peak community and industry organisations and all levels of government. It does not take a one size fits all approach, instead providing broad principles that take into account the unique characteristics of a location and the community that resides there. It’s purpose is to encourage “…excellence in the design and custodianship of urban places.” The following organisations were involved in the creation of the Protocol: Australian Government; Queensland Government Office of the Government Architect; Tasmanian Government Office of the State Architect; National Growth Areas Alliance; Australian Institute of Landscape Architects; Property Council of Australia; Planning Officials Group (State and Territory Planning Departments); Western Australian Government Office of the Government Architect; Australian Capital Territory Office of the Government Architect; National Heart Foundation of Australia; Australian Institute of Architects; Consult Australia; New South Wales Government Office of the Government Architect; South Australian Government Office of the Government Architect; Australian Local Government Association; Australian Sustainable Built Environment Council; Green Building Council of Australia; Water Services Association of Australia; Office of the Victorian Government Architect; Integrated Design Commission South Australia; Council of Capital City Lord Mayors; Planning Institute of Australia; and Australian Green Infrastructure Council.

The Protocol is based on the following 5 pillars:

1. Productivity; 2. Sustainability; 3. Liveability; 4. Leadership; and 5. Design excellence.

The Protocol establishes 12 principles for the creation of quality urban places in Australia and can be applied to any project or any location ranging from a large capital city to a rural town. These 12 principles can be categorised into 3 broader principles (incorporating the 5 pillars) as provided in Table 2 below.

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FOR AUSTRALIAN CITIES

Table 2: Principles of the Protocol

BROAD PRINCIPLE PRINCIPLE A. Design principles about place:

productivity and sustainability 1. Enhancing local economy,

environment and community 2. Connecting physically and socially 3. Diversity of options and experiences 4. Sustainable, enduring and resilient B. Design principles about people:

liveability 5. Comfortable and welcoming

6. Vibrant, with people around 7. Feels safe

8. Enjoyable and easy to walk and cycle around

C. Principles about leadership and

governance 9. Works within the planning, physical

and social context 10. Engages with relevant stakeholders 11. Excellence, innovation and leadership 12. Considers custodianship and

maintenance over time Further exploration of and discussion on these principles is contained within Attachment A to this report. In January 2012, a National Urban Design Workshop was held in Sydney. The principal purpose of the workshop was to bring representatives of the various stakeholders together to discuss the key aspects of the Protocol in detail, to establish its impacts and to identify roles and responsibilities in regard to its roll-out. Below is a list of the organisations that were represented at the workshop. Green Building Council of Australia; Major Cities Unit; Planning Institute of Australia; Australian Institute of Architects; Transport NSW; Chief Minister’s Department; Council of Capital City Lord Mayors; Australian Local Government Association; Public Works, New South Wales Government; City of Sydney; Water Services Association of Australia; City of Melbourne; Department of Premier and Cabinet, Victorian Government; Design Urban Pty Ltd; Places Victoria;

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FOR AUSTRALIAN CITIES Urban Design Alliance Qld; Integrated Design Commission of South Australia; Adelaide City Council; Hobart City Council; City of Darwin; Arup; Australian Green Infrastructure Council (AGIC); Property Council of Australia; Consult Australia; Heart Foundation; Queensland Government Architect; Australian Council for New Urbanism; CIC Australia; and Penrith City Council.

The Minister for Infrastructure and Transport opened the workshop and took questions from the floor, prior to taking his leave. Themes such as key outcomes, accelerators/inhibitors, stewardship (who/how?), key levers for change and how we can mess it up, were workshopped by the representatives of the various participant organisations. The Urban Design Protocol will be a reference for Council’s ongoing strategic and statutory planning role. CONSULTATION PROCESS As described in the body of this report. POLICY IMPLICATIONS The Protocol is consistent with many of drivers for the City of Darwin’s Evolving Darwin – Strategic Directions: Towards 2020 and beyond, including enhancement of Lifestyle, Connectivity, Environmental Sustainability, Cohesive Community and good Governance. BUDGET AND RESOURCE IMPLICATIONS Not assessed. RISK/LEGAL/LEGISLATIVE IMPLICATIONS Not assessed.

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FOR AUSTRALIAN CITIES ENVIRONMENTAL IMPLICATIONS Good urban design outcomes should result in better environmental outcomes. COUNCIL OFFICER CONFLICT OF INTEREST DECLARATION We the Author and Approving Officers declare that we do not have a Conflict of Interest in relation to this matter. DROSSO LELEKIS LUCCIO CERCARELLIMANAGER DESIGN, PLANNING & PROJECTS

GENERAL MANAGER – INFRASTRUCTURE

for enquiries, please contact Drosso Lelekis phone 89300414 or email: [email protected]. Attachment A: Creating Places for People – An Urban Design Protocol for

Australian Cities

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score/fold

score/fold

INFRA1219 November 2011

CREATING PLACES FOR PEOPLEAN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES

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kberry

Attachment A

CREATING PLACES FOR PEOPLE

AN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES

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Who should read this document?

The Urban Design Protocol is intended for anybody who has an interest in our built environment. Broadly, there are two audiences for this Protocol:

1. Decision makers and professionals whose actions affect the urban environment, including:

• Elected representatives and officers in Commonwealth, State, Territory and Local government• Consultants and practitioners whose work has an impact on urban design, including planning, development, architecture,

landscape architecture, engineering, law and finance.This audience should make particular reference to the model processes for creating high quality urban environments, and the outcomes that these processes are seeking to achieve.

2. The general public (individuals and community groups) who have an interest in urban design or may be affected by decisions about the built environment. This audience should make specific reference to the outcomes – that is, the aims and principles – described in this document and how this might affect them.

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INTRODUCTION 1Relationship with other policies and guidelines 2

WHAT IS GOOD URBAN DESIGN? 5

AIM AND PRINCIPLES 7Place: productivity + sustainability 9People: liveability 10Leadership and governance 11

MODEL PROCESSES 12

ELEMENTS OF URBAN DESIGN 14

APPENDIX A: URBAN DESIGN PROTOCOL ON A PAGE 17

APPENDIX B: NATIONAL URBAN POLICY ON A PAGE 18

CREATING PLACES FOR PEOPLE

AN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES

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CREATING PLACES FOR PEOPLE vI

Creating Places for People is a collective commitment to best practice urban design in Australia. The protocol is the result of two years of collaboration between peak community and industry organisations, and governments at all levels.

The quality of our neighbourhoods, towns and cities has a significant impact on our daily lives. Quality urban design makes a valuable contribution to our economy, our natural and built environments, and the liveability of our cities. It helps local businesses thrive. It attracts people to visit, live and work in a location. It considers the landscape, encourages biodiversity and incorporates natural ecosystems. It has an important influence on our physical and mental health and wellbeing. It provides opportunities for healthy lifestyles and community interaction.

Creating Places for People does not take a one size fits all approach. Instead, it provides broad principles that take into account the unique characteristics of a location and its community, and encourages excellence in the design and custodianship of urban places.

FOREWORD

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AN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES vII

The following organisations were involved in the creation of the Urban Design Protocol. We encourage others to embrace and adopt the Urban Design Protocol.

Australian Government Planning Officials Group (State and Territory Planning Departments)

New South Wales Government Government Architect’s Office

Office of the Victorian Government Architect

Queensland Government Office of the Government Architect

Western Australia Government Office of the Government Architect

South Australia Government Office of the Government Architect

Integrated Design Commission South Australia

Tasmanian Government Office of the State Architect

Australian Capital Territory Office of the Government Architect

Australian Local Government Association

Council of Capital City Lord Mayors

National Growth Areas Alliance National Heart Foundation of Australia

Australian Sustainable Built Environment Council

Planning Institute of Australia

Australian Institute of Landscape Architects

Australian Institute of Architects Green Building Council of Australia Australian Green Infrastructure Council

Property Council of Australia Consult Australia Water Services Association of Australia

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CREATING PLACES FOR PEOPLE vIII

First life, then spaces, then buildings: the other way around never works

Jan Gehl

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AN URBAN DESIGN PROTOCOL FOR AUSTRALIAN CITIES 1

Urban design occurs across all parts of a city, from the inner city to the suburbs and outer metropolitan fringe. Urban design is relevant to developments, whatever their nature and size. City-wide transport and infrastructure networks, urban infill projects, regional towns, new suburban developments, shopping malls, streets, office blocks, university campuses and hospitals are all the result of urban design.

High quality urban design becomes even more important as we increase the density of our cities and cater for a growing and changing population. It requires excellent planning, design and management of our built environment and the supporting social and economic infrastructure.

Creating Places for People: an urban design protocol for Australian cities (the Protocol) establishes 12 broadly agreed principles for quality urban places in Australia. These principles can be applied to any project or location – whether it is in a large capital city, regional centre or rural town.

INTRODUCTION

CAIRNS ESPLANADE REDEVELOPMENT, WINNER OF THE 2003 AUSTRALIA AWARD FOR URBAN DESIGN. BY COX RAYNOR AND TRACT CONSULTANTS. IMAGE COURTESY OF CAIRNS REGIONAL COUNCIL

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CREATING PLACES FOR PEOPLE 2

NATIONAL URBAN POLICYOur Cities, Our Future: a national urban policy for a productive, sustainable and liveable future (National Urban Policy) is the Australian Government’s strategic policy framework for the 18 major cities of Australia. It articulates the role of the Australian Government in helping our cities work better, whether through direct investment or in partnership with key stakeholders. Appendix B summarises the National Urban Policy goals and objectives. One of the actions arising from the National Urban Policy was a commitment to develop an urban design protocol.

COUNCIL OF AUSTRALIAN GOVERNMENTSThe purpose of the Urban Design Protocol is to encourage the highest standard of urban design. The Council of Australian Governments (COAG) agreed to undertake reforms in capital city strategic planning systems ‘to ensure Australian cities are globally competitive, productive, sustainable, liveable and socially inclusive and are well placed to meet future challenges and growth’1.

There are nine criteria listed in the COAG agreement. Among these is: ‘To encourage world-class urban design and architecture’. The Protocol responds to this by providing a framework to identify, implement, measure and improve best practice in urban design.

STATE, TERRITORY AND LOCAL GOVERNMENTMany jurisdictions already have in place guidelines and protocols relating to urban design. Figure 1 illustrates a ‘line of sight’ from the National Urban Policy down to neighbourhood and street level.

NATIONAL GUIDELINES AND TOOLSCreating Places for People complements other national guidelines and tools that currently exist including Healthy Spaces and Places – a national guide to designing places for healthy living2. The Green Building Council of Australia and the Australian Green Infrastructure Council will shortly be releasing a set of sustainability rating tools.

1 www.coagreformcouncil.gov.au/agenda/cities.cfm2 Developed through a partnership between the Heart Foundation, Australian Local Government Association and the Planning Institute of Australia, and initially supported by funding from

the Department of Health and Ageing

RELATIONSHIP WITH OTHER POLICIES AND GUIDELINES

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PADDINGTON RESERVOIR GARDENS, JOINT WINNER OF THE 2009 AUSTRALIA AWARD FOR URBAN DESIGN. BY TONKIN ZULAIKHA GREER ARCHITECTS AND JAMES MAHER DELANEY DESIGN. IMAGE COURTESY OF CITY OF SYDNEY

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Figure 1: Line of sight from national to site level

Thinking about urban design, strategic and statutory planning at different scales helps put them in context. The elements of urban design are illustrated next to the scale of planning at which they are commonly addressed. Concept adopted from Next Generation Planning, published by the Council of Mayors (SEQ), 2011

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WHAT IS GOODURBAN DESIGN?

Urban design is concerned with the arrangement, appearance and function of our suburbs, towns and cities. It is both a process and an outcome of creating localities in which people live, engage with each other, and the physical place around them.

Urban design involves many different disciplines including planning, development, architecture, landscape architecture, engineering, law and finance.

Urban design operates from the macro scale of the urban structure (planning, zoning, transport and infrastructure networks) to the micro scale of street furniture and lighting. When fully integrated into policy and planning systems, urban design can inform land use planning, infrastructure, built form and even the socio-demographic mix of a place.

Urban design can significantly influence:

• the economic success and socio-economic composition of a locality – whether it encourages local businesses and entrepreneurship; whether it attracts people to live there; whether the costs of housing and travel are affordable; and whether access to job opportunities, facilities and services are equitable;

• the physical scale, space and ambience of a place. As such, it affects the balance between natural ecosystems and built environments, and their sustainability;

• the social and cultural nature of a locality: how people interact with each other, how they move around, and how they use a place.

Although urban design is often delivered as a specific ‘project’, it is in fact a long-term process that continues to evolve over time. It is this layering of building and infrastructure types, natural ecosystems, communities and cultures that gives places their unique characteristics and identities.

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Refer to Elements of Urban Design for further definitions relating to urban design in the Australian context.

The Council of Australian Governments has agreed to encourage urban design of the highest international standard. This should include design, performance, quality, satisfaction and value when benchmarked against the best developments, products or processes in the world.

The objective of the urban design protocol is to encourage the highest standard of urban design across all parts of our suburbs, towns and cities.

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AIMS AND PRINCIPLES

The Urban Design Protocol is founded on five pillars: productivity, sustainability, liveability, leadership and design excellence. When integrated together, these pillars form the aim of the Protocol:

To create productive, sustainable and liveable places for people through

leadership and the integration of design excellence

Twelve basic principles underpin the Protocol based on design, leadership and governance. These principles are interrelated with the five foundation pillars of the Protocol.

lead

ersh

ip

design excellence

productive

sustainable liveable

QUALITY

URBAN DESIGN

Enhances economic productivity + living affordability

Fosters environmental responsibility

Demonstrates leadership

+ integrates design

excellence

Cultivates healthy,

cohesive + inclusive

communities

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What is being achieved (outcome) How it’s achieved (process)Aim Creates productive, sustainable + liveable places for people through leadership + the integration of design excellence

Productivity Enhances economic productivity + living affordability

Sustainability Fosters environmental responsibility

Liveability Cultivates healthy, cohesive + inclusive communities

Leadership Demonstrates visionary leadership + governance

Design Integrates design excellence

Design principles about place: productivity + sustainability Enhancing Enhances local economy, environment + community

Connected Connects physically + socially

Diverse Diversity of options + experiences

Enduring Sustainable, enduring + resilient Design principles about people: liveability

Comfortable Comfortable + welcoming

Vibrant Vibrant, with people around

Safe Feels safe

Walkable Enjoyable + easy to walk + bicycle around

Principles about leadership and governance Context Works within the planning, physical + social context

Engagement Engages with relevant stakeholders

Excellence Excellence, innovation + leadership

Custodianship Considers custodianship + maintenance over time

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PLACE: PRODUCTIVITY + SUSTAINABILITY

Creates the context for people to engage with the place

Principles Outcomes Attributes—How it helps to achieve world-class urban designEnhancing Enhances

the local economy, environment + community

• It respects the needs and aspirations of the community that lives and works there• It creates opportunities for people to prosper and local businesses to thrive• It sustains and enhances the natural environment• It enhances the built environment visually, physically and functionally• It celebrates unique characteristics—heritage, culture and community—that create a sense of place and identity

Connected Connects physically + socially

• It is well connected to surrounding areas• You can see where you are and where you are going• There is a range of transport options, including public transport, walking and bicycling• It is connected to places with jobs, schools, shops, facilities and services• It is connected with the past—the heritage of a place—and with the community and its culture• It feels connected with the natural environment

Diverse Diversity of options + experiences

• Each locality has its own character and qualities• There is a rich range of experiences—how you move around and interact with others, what buildings and

spaces look and feel like, and what things you can do• There is a range of facilities, services and activities• Despite the diversity, there is an overall harmonious blend• You can take different routes depending on your mood, or if you’re visiting different places on your way• It meets different people’s needs, including a diversity of housing options• There is biodiversity in the flora and fauna

Enduring Sustainable, enduring + resilient

• It is resilient to extreme weather events, natural disasters and a changing climate• Things are built to last, where appropriate – they’re made of robust materials, are designed well and there’s a

sense of quality• It is visually and aesthetically pleasing as well as practical• It is well maintained and cared for• It is designed to save resources like water, energy and materials, and minimises its impact on the environment• It considers current and future activities and can evolve and adapt over time

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PEOPLE: LIVEABILITY

Creates the context for people to engage with each other

Principles Outcomes Attributes – How it helps to achieve world-class urban design

Comfortable Comfortable + welcoming

• It feels comfortable to walk through, sit, stand, play, talk, read, or just relax and contemplate• It is not too exposed to unpleasant noise, wind, heat, rain, traffic or pollution• You can freely use the place, or at least part of it, without having to pay• You can be yourself and feel included as part of the community• It caters for people with various physical capabilities, the old and the young

Vibrant Vibrant, with people around

• You can see that there are other people around• People are enjoying themselves and each other’s company• There are places to meet and interact, play, explore, recreate and unwind• It is a place you want to visit, experience, or live in

Safe Feels safe • It feels safe and secure, even at night or on your own• There aren’t signs of decay such as graffiti, rubbish, weeds or derelict buildings and places• Roads and paths are safe for adults and children to walk or ride their bikes

Walkable Enjoyable + easy to walk + bicycle around

• It prioritises people walking or riding before vehicles• It is easy to get around on foot, bike, wheelchair, pushing a pram or wheeling luggage• Buildings and streets feel like they’re the right size and type for that place• It encourages physical activity and social interaction, and promotes a healthy lifestyle

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Principles Processes Attributes – How it helps achieve world-class urban designContext Works within

the planning, physical + social context

• It sets, or works within the strategic planning framework• It integrates with the physical environment, including its topography, biodiversity, landscape and views,

existing streets and buildings, and infrastructure• It incorporates the heritage, culture and historical context of surrounding communities and places• It is compatible with the surrounding social and economic activities

Engagement Engages with relevant stakeholders

• It acknowledges that urban design is primarily about creating places for people• It engages people in the development of their community• It adopts a multi-disciplinary and collaborative approach to planning and design

Excellence Fosters excellence, innovation + leadership

• It prioritises best practice planning, design, engineering, procurement and maintenance• It champions universal design and accessibility• It integrates design, and design expertise, from the earliest stages of a plan or project through to

completion• It engages competent, skilled professionals to design and deliver on projects

Custodianship Considers custodianship + maintenance over time

• It recognises that communities, environments and cities are continually evolving and adapting• It considers the wider environmental, social and economic costs and benefits of development,

operations, maintenance and disposal• It ensures that the design of a place is appropriate for its ongoing maintenance, operations and upkeep• It incorporates strategies to reduce and adapt to climate change

LEADERSHIP + GOVERNANCE

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MODEL PROCESSES

Well-designed urban places can only be achieved by adopting an integrated design approach where multi-disciplinary teams work collaboratively at all stages of a project, from design through to procurement, implementation, operation and maintenance. Good model processes prioritise design excellence through leadership, teamwork and integrated processes.

The following is an indicative process for delivering high quality urban design projects. It provides a broad description of the considerations required.

CONTEXT

• Strategic planning

A good strategic planning framework analyses and decides what economic, environmental and social outcomes need to be achieved, and prioritises actions to achieve these outcomes. Strategic policies are then implemented through a variety of means, including statutory plans, infrastructure plans and service delivery plans. COAG’s review of capital city strategic planning systems sets nine criteria that should be embodied in city strategic planning systems.

A project should work within the context of the strategic planning framework. It should respond to the National Urban Policy objectives and the principles outlined in the Urban Design Protocol. It also needs to work within the strategic policies and statutory plans of the relevant State / Territory and local authorities (see Figure 1).

ENGAGEMENT Relevant stakeholders, including the broader community, should provide input and feedback at key stages of process. They can help to develop the vision, review design options and provide feedback during public exhibition.

EXCELLENCE through:

• Leadership A process that embraces design excellence requires visionary leadership. One way of encouraging this is to appoint a client-side project leader and ensure that delivering high quality urban design outcomes is a key accountability. For larger projects, consider a ‘design champion’ within the project team, capability based selection, design competition and/or an independent design review.

• Collaboration and teamwork

Urban design excellence is achieved by multidisciplinary teams with appropriate skills and experience. Ensure the project team includes competent, skilled design professionals including land use planners, urban designers, landscape architects, architects and engineers as appropriate.

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• Integrated processes

Invest up front in quality, integrated processes:• Consult relevant stakeholders and communities at appropriate stages• Develop a vision for, and specify, the outcomes that the project seeks to achieve• Write a detailed and balanced brief, setting out performance criteria• Undertake thorough analysis of site and context• Develop a variety of realistic and varied options (potentially through an enquiry by design process) that meet

the brief• Evaluate options against performance criteria and Urban Design Protocol principles and attributes• Develop the preferred option through an iterative design process, and document decision making• Document the preferred option• Select the procurement method, ensuring that procurement processes do not reduce design quality and

monitor throughout the implementation of the project to ensure outcomes are achieved• Evaluate outcomes with reference to the Urban Design Protocol principles, and document areas for

improvement or future rectification

• Design culture Foster a culture which critically assesses urban design, celebrates its best examples and builds design literacy. Reward design excellence.

CUSTODIANSHIP Ensure that systems are in place for ongoing operations, management and upkeep so that the place is well-maintained and sustainable over the long term.

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ELEMENTS OF URBAN DESIGNThis section provides basic explanations for terms that are commonly used for urban design in the Australian context. Figure 2 shows the approximate hierarchical relationship between the elements of urban form, followed by a brief definition of the elements.

Figure 2: Elements of urban form – macro to micro scale

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Urban structure The overall framework of a region, town or precinct, showing relationships between zones of built forms, land forms, natural environments, activities and open spaces. It encompasses broader systems including transport and infrastructure networks.

Urban grain The balance of open space to built form, and the nature and extent of subdividing an area into smaller parcels or blocks. For example a ‘fine urban grain’ might constitute a network of small or detailed streetscapes. It takes into consideration the hierarchy of street types, the physical linkages and movement between locations, and modes of transport.

Density + mix The intensity of development and the range of different uses (such as residential, commercial, institutional or recreational uses).

Height + massing The scale of buildings in relation to height and floor area, and how they relate to surrounding land forms, buildings and streets. It also incorporates the building envelope, site coverage and solar orientation. Height and massing create the sense of openness or enclosure, and affect the amenity of streets, spaces and other buildings.

Streetscape + landscape The design of public spaces such as streets, open spaces and pathways, and includes landscaping, microclimate, shading and planting.

Facade + interface The relationship of buildings to the site, street and neighbouring buildings (alignment, setbacks, boundary treatment) and the architectural expression of their facades (projections, openings, patterns and materials).

Details + materials The close-up appearance of objects and surfaces and the selection of materials in terms of detail, craftsmanship, texture, colour, durability, sustainability and treatment. It includes public and private structures and space, street furniture, paving, lighting and signage. It contributes to human comfort, safety and enjoyment of the public or private domain.

Public Realm Much of urban design is concerned with the design and management of publicly used space (also referred to as the public realm or public domain) and the way this is experienced and used. The public realm includes the natural and built environment used by the general public on a day-to-day basis such as streets, plazas, parks, and public infrastructure. Some aspects of privately owned space such as the bulk and scale of buildings, courtyards and entries that are traversed by the public or gardens that are visible from the public realm, can also contribute to the overall result. At times, there is a blurring of public and private realms, particularly where privately owned space is publicly used.

Topography, landscape The natural environment includes the topography of landforms, water and environment

Social + economic fabric The non-physical aspects of the urban form include social factors (culture, participation, health and well-being) as well as the productive capacity and economic productivity of a community. It incorporates aspects such as demographics and life stages, social interaction and support networks.

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GEELONG YOUTH ACTIVITY AREA, WINNER OF THE 2010 AUSTRALIA AWARD FOR URBAN DESIGN. BY CITY OF

GREATER GEELONG, CONVIC DESIGN PTY LTD, CANTERI BROS. CONSTRUCTIONS PTY LTD, CARDO GROGAN

RICHARDS, CIVIL ENGINEERING CONSULTANTS, WEBB AUSTRALIA GROUP (VIC) AND LIGHTING AND ELECTRICAL

DESIGN CONSULTANTS.

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APPENDIX A: URBAN DESIGN PROTOCOL ON A PAGE

AIM: to create productive, sustainable and liveable places through leadership and the integration of design excellence

Urban design incorporates:• Outcomes – described in the eight design principles• Processes – described in the four principles about

leadership and governance.

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APPENDIX B: NATIONAL URBAN POLICY ON A PAGEOur Cities, Our Future: a national urban policy for a productive sustainable and liveable future presents a national framework to guide policy development and public and private investment in cities. It articulates a set of goals, objectives and underlying principles to guide decision making. See www.majorcities.gov.au for further information.

Goals Objectives Principles

Productivity To harness the productivity of Australia’s people and industry, by better managing our use of labour, creativity and knowledge, land and infrastructure

Efficiency

Value for money

Innovation

Adaptability

Resilience

Equity

Affordability

Subsidiarity

Integration

Engagement

1. Improve labour and capital productivity

2. Integrate land use and infrastructure

3. Improve the efficiency of urban infrastructure

Sustainability To advance the sustainability of Australia’s natural and built environment, including through better resource and risk management

4. Protect and sustain our natural and built environments

5. Reduce greenhouse gas emissions and improve air quality

6. Manage our resources sustainably

7. Increase resilience to climate change, emergency events and natural hazards

Liveability To enhance the liveability of our cities by promoting better urban design, planning and affordable access to recreational, cultural and community facilities

8. Facilitate the supply of appropriate mixed income housing

9. Support affordable living choices

10. Improve accessibility and reduce dependence on private vehicles

11. Support community wellbeing

Governance To progress the goals of productivity, sustainability and liveability through better governance, planning and management

12. Improve the planning and management of our cities

13. Streamline administrative processes

14. Evaluate progress

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15 OFFICERS REPORTS 15.2 Northern Territory of Australia Proposal to Amend Northern Territory Planning Scheme PA 2011/0993 Dual Occupancy Report No. 12TS0023DL:jd (28/0212) Common No. 2178991 Report Number 12TS0023DL:jd attached.

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2nd ORDINARY COUNCIL MEETING/OPEN AGENDA ITEM: 15.2

SUBJECT: NORTHERN TERRITORY OF AUSTRALIA PROPOSAL TO AMEND NORTHERN TERRITORY PLANNING SCHEME PA2011/0993 DUAL OCCUPANCY

REPORT No. 12TS0023 DL:jd COMMON No. 2178991 Date: 28/02/2012 Presenter: Manager, Design Planning & Projects, Drosso Lelekis Approved: General Manager – Infrastructure, Luccio Cercarelli PURPOSE The purpose of this report is to recommend a Council response to the Northern Territory Government’s Proposal To Amend Northern Territory Planning Scheme PA2011/0935 Dual Occupancy. LINK TO STRATEGIC PLAN The issues addressed in this Report are in accordance with the following Goals/Strategies of the Darwin City Council 2008 – 2012 as outlined in the ‘Evolving Darwin Strategic Directions: Towards 2020 and Beyond’:- Goal 1: Achieve Effective Partnerships and Engage in

Collaborative Relationships. Outcome 1.1: Improve relations with all levels of Government. Key Strategies 1.1.4: Play a strategic role in the planning and developmental

processes that impact Darwin. KEY ISSUES

The Northern Territory Government proposes an amendment to the Northern Territory Planning Scheme that would allow dual occupancy on SD (Single Dwelling Residential) allotments of 1,000 square metres or larger within the Darwin Municipality under certain conditions.

There are an estimated 2,517 allotments within the Darwin Municipality that

meet the minimum land size requirement and other conditions contained within the amendment.

The current dual occupancy proposal differs in minimum eligible allotment

size from the dual occupancy proposal contained within the Northern Territory Government’s Draft Greater Darwin Region Land Use Plan -Towards 2030 where allotments of 1,200 square metres or greater would have been eligible for dual occupancy.

The Government’s proposed Northern Territory Planning Scheme

amendment for dual occupancy could result in the need for the upgrading of infrastructure under the care and control of the City of Darwin.

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PAGE: 2 REPORT NUMBER: 12TS0023DL:jd SUBJECT: NORTHERN TERRITORY OF AUSTRALIA PROPOSAL TO AMEND

NORTHERN TERRITORY PLANNING SCHEME PA2011/0993 DUAL OCCUPANCY

The identification of suitable areas for increasing residential density must

include consideration of the suitability of existing and provision of sustainable physical and social infrastructure needs. It is unclear from the proposal by Government what assessment or consideration regarding these issues has been undertaken in drafting of the amendment.

The Northern Territory Government should also consider and identify how

this proposal addresses the Australian Government’s objectives Creating Places for People: An Urban Design Protocol for Australian Cities, objectives.

RECOMMENDATIONS A. THAT Report Number 12TS0023DL:jd entitled Northern Territory of Australia

Proposal to Amend Northern Territory Planning Scheme PA2011/0993 Dual Occupancy be received and noted.

B. THAT Council endorse the response letter contained in Attachment E to

Report Number 12TS0023DL:jd entitled Northern Territory of Australia Proposal to Amend Northern Territory Planning Scheme PA2011/0993 Dual Occupancy as its formal submission.

C. That the Lord Mayor forward a copy of the letter, contained in Attachment E to

Report Number 12TS0023DL:jd entitled Northern Territory of Australia Proposal to Amend Northern Territory Planning Scheme PA2011/0993 Dual Occupancy to the Minister for Lands and Planning.

BACKGROUND On 30 January 2012, the Northern Territory Government provided a Media Release entitled More housing options to fuel the Territory’s Growth, Attachment A. The media release advised that the Northern Territory Government was proposing to introduce a Dual Occupancy option to give Territorians more options in the housing market. On 3 February 2012, Government advertised the proposal to Amend Northern Territory Planning Scheme PA 2011/0935 Dual Occupancy. The proposal is open for public comment for a period of 28 days.

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DISCUSSION The Northern Territory Government’s proposal to Amend the Northern Territory Planning Scheme under PA2011/0935 Dual Occupancy, Attachment B, would result in an amendment to Zone SD (Single Dwelling Residential) in the Northern Territory Planning Scheme, that would allow for multiple dwellings (dual occupancy) under the following circumstances:

There are no more than two (2) dwellings on the lot; There is no dependant unit on the lot; The lot has a site area of at least 1,000 square metres; The lot is not affected by the 1% (Primary) storm surge; The lot is not located within the Australian Noise Exposure Forecast (ANEF)

20 unit value contour or greater; There is only one point of vehicular access to the site unless the site is

located on a corner; and The development meets all (of) the (Northern Territory) Planning Scheme

requirements for multiple dwellings i.e. car parking, height, setbacks, private open space and building design, as well as the proposed new Clause 7.2A.

The proposed amendments to the Northern Territory Planning Scheme, Attachment B, are shown in red text. A desktop assessment undertaken by Council officers indicated that there are potentially 2,517 SD (Single Dwelling Residential) zoned allotments within the Darwin Municipality which have an area of 1,000 square metres or greater and that are both outside of the ANEF 20 unit value contour or greater and the 1% (Primary) Storm Surge Zone. The location and spread of the affected allotments is shown in Attachment C. Table 1 below indicates the number of SD zoned allotments by suburb, within the Darwin Municipality that potentially could contain dual occupancy. It must be noted Council officers were unable to determine how many of these lots already contained two (2) houses or a dependant unit. Table 1: Darwin Municipality SD Zoned Allotments 1,000 Square Metres or Greater in Area, Suburb by Suburb:

Suburb Number of Possible SD Duel Occupancy Sites

ALAWA 54 ANULA 74 BAYVIEW 59 BRINKIN 113 COCONUT GROVE 19

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Suburb Number of Possible SD Duel Occupancy Sites

FANNIE BAY 312 JINGILI 27 KARAMA 144 LARRAKEYAH 108 LEANYER 100 LUDMILLA 103 MALAK 120 MARRARA 83 MILLNER 86 MOIL 31 NAKARA 24 NIGHTCLIFF 321 PARAP 132 RAPID CREEK 159 STUART PARK 194 THE NARROWS 57 TIWI 57 WAGAMAN 19 WANGURI 37 WULAGI 84 TOTAL 2,517

It is important to note however, that many of the owners who have dwellings on their lots may not wish to build a second dwelling due to the positioning of the existing house on the lot, their family preference, or economics. Lots with existing dependant units will not be eligible for a second dwelling, however it is assumed that this proposal will offer residents with existing dependant units the opportunity to convert these to a second dwelling (where feasible) that can then be legally let or sold separately from the original dwelling.

The Northern Territory Government’s Draft Greater Darwin Region Land Use Plan -Towards 2030 introduced the concept of dual occupancy, whereby allotments of 1,200m2 or greater in area would have been eligible for a second dwelling. Under the original 1,200m2 allotment area proposal, an estimated 843 allotments within the Darwin Municipality may have been eligible. This represents up to an additional 1,674 allotments that would be eligible under the current proposal. The proposed Northern Territory Planning Scheme amendment covers a broader area than the previous dual occupancy proposal, but a more diverse market, across the Municipality of Darwin.

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COUNCIL CONSIDERATIONS: General Comments: Darwin, as a capital city, is the population and economic hub of the Northern Territory. Major cities drive the Australian economy generating 80 percent of the Gross Domestic Product (GDP) and housing nearly 75 per cent of Australia’s workforce. Priority road and rail linkages and planned infrastructure for the airport and the port are required to support Darwin’s productivity. Major projects in the Darwin region will support economic and population growth, including the INPEX Ichthys gas project and the development of a Marine Supply Base and Defence Support Hub. The capacity for Darwin to manage change and accommodate growth will determine the quality of life and economic prosperity of all Territorians. Coordination and planning across all levels of government must drive better integrated land use, settlement and infrastructure and climate adaption. The provision of sustainable physical and social infrastructure needs to be a priority as part of any proposal to increase the density of housing stock in the Municipality. The City of Darwin recognises the need for all three levels of government to work together and with the community to ensure our municipality and the surrounding areas are managed sustainably for the future and the well being of the community. Local government provides the most accessible level of government and holds unique knowledge about local community needs and is responsible for community assets worth billions of dollars. The concept and intent of the Northern Territory Planning Scheme Amendment is supported by Council officers as it is considered an appropriate method of urban infill, providing opportunities for housing diversification and may assist with affordable housing issues. The key concerns regarding the Northern Territory Government’s dual occupancy proposal are as follows: Impact on Infrastructure and Social Services Due to the limited time to make comment, Council has been unable to determine if and what impact the proposed amendment will have on existing infrastructure and any resulting upgrade or new provision required. In accommodating the new dwelling growth that would likely be facilitated by the Northern Territory Government’s latest dual occupancy proposal, it will be important

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for the City of Darwin to understand the impact on and need to upgrade its physical and social infrastructure to appropriately manage the additional population. The advertised amendment does not contain or provide any supporting information regarding any assessment of infrastructure needs. Any proposal to increase density that would result in additional demands on existing infrastructure and services must be accompanied by an appropriate response in terms of undertaking infrastructure upgrading. As the City of Darwin is responsible for the care and maintenance of the majority of roads, lighting, parks and stormwater drainage infrastructure within the Darwin Municipality, responsibility for the funding of the necessary upgrading of this infrastructure and services in order to accommodate the Northern Territory Government’s proposal, would fall on the Darwin rate payers. Higher densities and a potentially differing demographic may also place increased pressure on the Darwin’s existing social infrastructure and services, including libraries, swimming pools, ovals, child care centres, medical, educational and other facilities and parks. It is recommended that the Northern Territory Government defer the amendment until an assessment by Government can be undertaken and any shortfalls identified. Appropriate measures could be developed and implemented to ensure that the Darwin rate payers are not disadvantaged. The assessment should include but not be limited to:

determining the resulting need for social and physical infrastructure due to the urban densification;

funding mechanisms for infrastructure/services upgrading that would be essential in order to facilitate the current dual occupancy proposal;

funding and timing of key infrastructure and services to support the dual occupancy proposal; and

a clear governance framework which includes accountability for delivery of the upgrading of infrastructure/social services to facilitate the dual occupancy proposal.

The City of Darwin and Northern Territory Government must work in tandem to ensure that the desired outcomes of the dual occupancy proposal are achieved in the most equitable and appropriate manner. The City of Darwin previously sought access to the research that underpinned the Greater Darwin Land Use Plan, access to similar research on dual occupancy sought. Local Government Engagement

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The Council of Australia Governments (COAG) criteria contained in Attachment D to this report, within Criteria 9, identifies the call for co-ordination with local government (as one of the three levels of government). Without close alignment, coordination and the support from the City of Darwin, the current Northern Territory Government dual occupancy proposal could result in poor outcomes for the Darwin community. Urban Design Principles To succeed, urban infill requires a strong focus on place making/urban design principles to make places attractive, sustainable, liveable and to assist in encouraging development. Developments need to include adequate setbacks and permeable vegetated open spaces in order to avoid the creation of heat sinks that increase the temperature of our liveable space. The City of Darwin, along with other agencies, will play a key role in respect to facilitating such outcomes. The proposed dual occupancy provision should not occur without appropriate urban design guidelines. Guidelines should include but not be limited to aspects, such as:

Minimum width of a lot should be provided, for example 24m wide, to ensure the lot is suitable for dual occupancy;

Location and design of private open space, and amenity issues; Minimum landscaping requirements to provide amenity and protect the

Urban Forrest; and Architectural design factors, including orientation and capturing the

breeze/cross ventilation. The proposed dual occupancy amendment could also include provision for locational criteria, over and above the lot size criteria, for example within 800m of a shop, community facility, open space or a bus stop. This type of criteria could support the principles of creating a sustainable city. The Northern Territory Government’s attention should also be drawn to the Australian Government’s Creating Places for People: An Urban Design Protocol for Australian Cities and the core principles of: Productivity; Sustainability; Liveability; Leadership; and Design excellence when considering strategic/statutory planning objectives. The key objective of the urban design protocol is to ” …encourage the highest standard of urban design across all parts of our suburbs, towns and cities.” As outlined above, the dual occupancy strategy proposed by the Northern Territory Government has the potential to change the established character of suburbs and to succeed, needs to be supported by design guidelines. Design and amenity will be the key, with strict adherence to the Northern Territory Planning Scheme is a critical factor, to avoiding unacceptable impacts on surrounding properties.

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Appropriate locations for future medium density housing within existing suburbs have not been divulged and need to be reviewed. Identification of strategic locations for urban infill will also guide the provision of future infrastructure to meet the needs of a growing community. There are other strategic land uses the Northern Territory Government will need to consider for population growth including, the need for a future regional waste facility to accommodate additional waste and the need for a hazardous waste facility to service the expected oil and gas industry based in Darwin. Zoning The proposal to allow dual occupancy on SD allotments conforming to the criteria may not eliminate Council’s ongoing concerns relating to spot rezoning. It may be argued that in fact it may lead to further spot rezoning and an increase in densities as property owners with dual occupancy may seek rezoning to a higher density based on the principle that the lot already contains a higher than normal SD density lessening the impact of rezoning from SD to MD, (Multiple Dwellings). Government must include appropriate controls to manage this issue. The introduction of a specific new zone may assist in the provision of specific urban design principles and may assist in reducing rezone if appropriate controls for that zone are included. Subdivision and Strata Titling Advice received from the Northern Territory Government is that strata titling of dual occupancy sites can occur. Access Criteria The proposal indicates to limit access to a singular point other than corner allotments. It is unclear as to why this limitation has been provided for within the amendment as it could lead to poor urban design outcomes on the allotments as it limits flexibility of design. Council is the authority responsible for approving the number and type of access points from its road network therefore the reference within the Northern Territory Planning Scheme Amendment is inappropriate and should be removed. Summary

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When considering how to increase the density of a city, there are a number of methods that can be employed. In order to achieve a higher density within existing urban areas there will be an inevitable transition from the established urban form, to that of a more compact arrangement, through a process referred to as ‘urban infill’. To have an understanding of what urban infill outcomes are possible for an area, there are a number of considerations to be made. The City of Darwin therefore supports the development of a strategic plan for an area, principles and method of achieving that goal, whether that approach be at a fine grained lot by lot basis or a broader neighbourhood level.

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There is a considerable amount of research and investigation that must take place to have a full understanding of the likely population growth, capacity of both the land and existing services and infrastructure, before a maximum potential can be determined. Once this understanding has been achieved, the policy can be developed to achieve the desired outcome. There is a clear intent to consolidate existing urban growth through the Northern Territory Government’s dual occupancy proposal. This proposal is limited however to targeting infill redevelopment opportunities within existing SD zoned allotments. The City of Darwin supports a broader approach and not limited to SD allotments in isolation in the interests of increasing housing affordability within the Municipality of Darwin. The City of Darwin recognises the need for and supports expanded housing choices, with a greater focus on temporary accommodation, retirement living and affordable housing. However a broader urban infill policy approach should be developed to support the housing needs. Design guidance is also required to facilitate appropriate development outcomes (e.g providing infrastructure/services upgrading required). It is recommended that Council support “in principle” the intent of the dual occupancy amendment subject to issues identified within the report including the development of design guidelines and principles. CONSULTATION PROCESS The Northern Territory Government provided a media release on 30 January 2012 outlining its proposal to introduce a Dual Occupancy option for SD (Single Dwelling) zoned allotments of 1,000 square metres or greater in area, through a proposed Northern Territory Planning Scheme amendment under the conditions listed in this report. The proposal was opened for public comment on 3 February 2012, for a period of 28 days. Strategic Town Planner, City of Darwin Revenue Supervisor, City of Darwin Elton Consulting Group Pty Ltd POLICY IMPLICATIONS No direct impact on existing Council Policies. BUDGET AND RESOURCE IMPLICATIONS

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Given the lack of information to support this amendment Council is unable to determine what if any financial impacts will be associated with the provision or upgrading of social and physical infrastructure resulting from the increased densities. Council generates a significant portion of its funding to support the provision of services to the Darwin community via its rating system. The Council rating system is based on the Northern Territory Planning Scheme Zones. The proposal for dual occupancy within specific SD zones will result in an increase in demand on various Council services however, Council may not realise the equivalent increases in its rates base to offset the increase demand. Unlike in other states, the City of Darwin does not have responsibility for planning or building approvals. As a result Council will only be able to easily identify SD lots which contain dual occupancy if:

(1) The property is strata titled. (2) The land owner informs Council.

If a property owner constructs a second dwelling on their property under the proposed amendment to the Northern Territory Planning Scheme, the issue of General Rates would work as follows (provided we are aware of the construction): Rates would be assessed as the greater of the UCV multiplied by the Rate in the Dollar (RID) OR the number of dwellings multiplied by the Minimum Rate. This currently applies for blocks of flats or “Granny Flats”. For example a block in Ludmilla of 1,440m2 (zoned SD) has a current UCV of $384,000 and has a single house constructed on it. The current RID for the SD Zone is 0.435561% with a Minimum Rate of $882. Currently the rates calculation is $385,000 X 0.435561% = $1,672.55. As this is greater than the Minimum Rate of 1 dwelling multiplied by $882, the rates are assessed at $1,672.55. If they constructed an additional dwelling the UCV would remain the same so the initial calculation would also stay the same, however, the Minimum Rate calculation would be 2 dwellings multiplied by $882 = $1,764. Therefore the General Rate would be assessed at the greater of the two calculations, $1,764, an extra $91.45pa. in rates for this example. If the property were Strata Titled the UCV is normally divided between the two properties. In the above example it would result in two UCVs of $192,000 each, the rates calculation on these UCVs gives 2 Minimum Rates of $882 each. Therefore

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there is no advantage or disadvantage in respect of rates in Strata Titling this property. It is clear from the example that the ability for Council to fund costs associated with potential increase in demand on its services from the dual occupancy sites is limited. It is noted that the example assumes no increase in property value due to the planning scheme amendment. If the allotments identified for dual occupancy were provided with a new specific zoning this would provide Council with a simplified system as a specific RID can be identified and would ensure equity in the community in funding services. In relation to the need to fund upgrading of public infrastructure as a result of dual occupancy, Council has the ability to develop financial contribution plans and/or introduce a special rate. Both these options require further detailed investigation and consideration. RISK/LEGAL/LEGISLATIVE IMPLICATIONS The risk exists that without sound design guidelines and principles to accompany the Scheme amendment the proposal could result in poor urban outcomes for the community. ENVIRONMENTAL IMPLICATIONS Design guidelines and principles are required to ensure good urban design outcomes are achieved such as:

adequate and appropriate private open space and landscape areas; architectural design which addresses environmental and climate

considerations; retention of the amenities associated with the urban forest; and management of potential increases in heat sinks throughout the suburbs.

There is insufficient information accompanying the proposed amendment and insufficient time during the consultation period to determine whether existing public parks and associated infrastructure are able to support the likely increases in density resulting from this proposal and ongoing spot rezonings. COUNCIL OFFICER CONFLICT OF INTEREST DECLARATION We the Author and Approving Officers declare that we do not have a Conflict of Interest in relation to this matter.

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DROSSO LELEKIS LUCCIO CERCARELLIMANAGER DESIGN, PLANNING & PROJECTS

GENERAL MANAGER – INFRASTRUCTURE

Any queries on this report may be directed to Cindy Robson on 89300528 or [email protected]

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ATTACHMENTS: Attachment A: Northern Territory Government Media Release, More housing

options to fuel the Territory’s Growth, 30 January 2012. Attachment B: Northern Territory of Australia Proposal to Amend Northern

Territory Planning Scheme PA2011/0935 – Duel Occupancy. Attachment C: Map of Potential Properties affected within Darwin. Attachment D: COAG Criteria for Capital City Strategic Planning Systems Attachment E Outgoing letter to the Department of Planning and Infrastructure

- Northern Territory Government Proposal To Amend Northern Territory Planning Scheme PA2011/0935 Dual Occupancy

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kberry

Attachment A

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Attachment C

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Attachment B

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ATTACHMENT D Report 12TS0023DL:jd - Greater Darwin Region Land Use Plan - Towards 2030 - Consultation Paper

COAG Criteria For Capital City Strategic Planning Systems Capital city strategic planning systems should:

1. be integrated:

a) across functions, including land-use and transport planning, economic and infrastructure development, environmental assessment and urban development, and

b) across government agencies;

2. provide for a consistent hierarchy of future oriented and publicly available plans, including:

c) long term (for example, 15-30 year) integrated strategic plans,

d) medium term (for example, 5-15 year) prioritised infrastructure and land-use plans, and

e) near term prioritised infrastructure project pipeline backed by appropriately detailed project plans;

3. provide for nationally-significant economic infrastructure (both new and upgrade of existing) including:

f) transport corridors,

g) international gateways,

h) intermodal connections,

i) major communications and utilities infrastructure, and

j) reservation of appropriate lands to support future expansion;

4. address nationally-significant policy issues including:

k) population growth and demographic change,

l) productivity and global competitiveness,

m) climate change mitigation and adaptation,

n) efficient development and use of existing and new infrastructure and other public assets,

o) connectivity of people to jobs and businesses to markets,

p) development of major urban corridors,

q) social inclusion,

r) health, liveability, and community wellbeing,

s) housing affordability, and

t) matters of national environmental significance;

5. consider and strengthen the networks between capital cities and major regional centres, and other important domestic and international connections;

6. provide for planned, sequenced and evidence-based land release and an appropriate balance of infill and greenfields development;

7. clearly identify priorities for investment and policy effort by governments, and provide an effective framework for private sector investment and innovation;

8. encourage world-class urban design and architecture; and

9. provide effective implementation arrangements and supporting mechanisms, including:

u) clear accountabilities, timelines and appropriate performance measures,

v) coordination between all three levels of government, with opportunities for Commonwealth and Local Government input, and linked, streamlined and efficient approval processes including under the Commonwealth Environment Protection and Biodiversity Conservation Act 1999,

w) evaluation and review cycles that support the need for balance between flexibility and certainty, including trigger points that identify the need for change in policy settings, and

x) appropriate consultation and engagement with external stakeholders, experts and the wider community.

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Please quote: 1878045 DL:lm 29 February 2012 Ms Ann Stephens Project Manager Strategic Lands Planning Department of Planning and Infrastructure GPO Box 1680 DARWIN NT 0801 Dear Ms Stephens Northern Territory Government Proposal To Amend Northern Territory Planning Scheme PA2011/0935 Dual Occupancy The City of Darwin has considered the Northern Territory Government’s proposal to introduce a dual occupancy development option on SD (Single Dwelling) zoned allotments within the Municipality of Darwin. The City of Darwin supports the proposal “in principle”, subject to resolution of key concerns, as it should provide an appropriate method of urban infill and housing diversification, which may assist in providing affordable housing. The City of Darwin has a number of key concerns regarding the Planning Scheme Amendment that should be resolved in partnership with Council prior to any final consideration of the amendment. These concerns are detailed as follows: Impact on Infrastructure and Social Services Due to the time available to make comment, Council has been unable to determine if, and what, impact the proposed amendment will have on existing infrastructure and any resulting upgrade or new provision required. In accommodating the new dwelling growth as a result of the Northern Territory Government’s latest dual occupancy proposal, it will be important for the City of Darwin to understand the impact on and need to upgrade its physical and social infrastructure to appropriately manage the additional population. The advertised amendment does not contain, or provide, any supporting information regarding any assessment of infrastructure needs. Any proposal to increase density that would result in additional demands on existing infrastructure and services must be accompanied by an appropriate response in terms of undertaking infrastructure upgrading. …/2

ATTACHMENT E

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Higher densities and a potentially differing demographic may also place increased pressure on the Darwin’s existing social infrastructure and services, including libraries, swimming pools, parks, ovals, child care centres, medical, educational and other facilities. It is recommended that the Northern Territory Government defer the amendment until an assessment by Government, in partnership with Council, can be undertaken and where shortfalls are identified appropriate measures be developed and implemented to ensure that the Darwin community is not disadvantaged. The assessment should include but not be limited to:

determining the resulting need for social and physical infrastructure due to the urban densification;

funding mechanisms for infrastructure/services upgrading that would be essential in order to facilitate the current dual occupancy proposal;

funding and timing of key infrastructure and services to support the dual occupancy proposal; and

a clear governance framework which includes accountability for delivery of the upgrading of infrastructure/social services to facilitate the dual occupancy proposal.

The City of Darwin and Northern Territory Government must align themselves to ensure that the desired outcomes of the dual occupancy proposal are achieved in the most equitable and appropriate manner. The City of Darwin previously sought access to the research that underpinned the Greater Darwin Land Use Plan, access to similar research on dual occupancy sought. Local Government Engagement The Council of Australia Governments (COAG) criteria, within Criteria 9, identifies the call for co-ordination with local government (as one of the three levels of government). Without close alignment, coordination and the support from the City of Darwin, the current Northern Territory Government dual occupancy proposal could result in poor outcomes for the Darwin community. Urban Design Principles To succeed, urban infill requires a strong focus on place making/urban design principles to make places attractive, sustainable, liveable and to assist in encouraging development. Developments need to include adequate setbacks and permeable vegetated open spaces in order to avoid the creation of heat islands that increase the temperature of our liveable space. The City of Darwin, along with other agencies, will play a key role in respect to facilitating such outcomes.

…/3

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-3- The proposed dual occupancy provision should not occur without appropriate urban design guidelines. Guidelines should include but not be limited to aspects, such as:

Minimum width of a lot should be provided, for example 24m wide, to ensure the lot is suitable for dual occupancy;

Location and design of private open space, and amenity issues; Minimum landscaping requirements to provide amenity and protect the

Urban Forrest; and Architectural design factors, including orientation and capturing the

breeze/cross ventilation. The proposed dual occupancy amendment could also include provision for locational criteria, over and above the lot size criteria, for example within 800m of a shop, community facility, open space or a bus stop. This type of criteria should support the principles of creating a sustainable city. The Northern Territory Government’s attention is also drawn to the Australian Government’s Creating Places for People: An Urban Design Protocol for Australian Cities and the core principles of: Productivity; Sustainability; Liveability; Leadership; and Design excellence when considering strategic/statutory planning objectives. The key objective of the urban design protocol is to ” …encourage the highest standard of urban design across all parts of our suburbs, towns and cities.” As outlined above, the dual occupancy strategy proposed by the Northern Territory Government has the potential to change the established character of suburbs and to succeed, needs to be supported by design guidelines. Design and amenity will be the key, with strict adherence to the Northern Territory Planning Scheme is a critical factor, to avoiding unacceptable impacts on surrounding properties. Appropriate locations for future medium density housing within existing suburbs have not been identified and needs to be reviewed. Identification of strategic locations for urban infill will also guide the provision of future infrastructure to meet the needs of a growing community. Zoning The proposal to allow dual occupancy on SD allotments conforming to the criteria may not eliminate Council’s ongoing concerns relating to spot rezoning. It may be argued that in fact it may lead to further spot rezoning and increase in densities as property owners with dual occupancy may seek rezoning to a higher density based on the principle that the lot already contains a higher than normal SD density lessening the impact of rezoning from SD to MD, (Multiple Dwellings). Government must include appropriate controls to manage this issue. The introduction of a specific new zone may assist in the provision of specific urban design guidelines and principles and may assist in reducing rezoning if appropriate controls for that zone are included.

…/4

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-4- Vehicle Access Criteria The proposal limits vehicle access to a singular point other than for corner allotments. It is unclear as to why this limitation has been provided for within the amendment as it could lead to poor urban design outcomes on the allotments as it limits flexibility of design. Council is the authority responsible for approving the number and type of vehicle access points from its road network therefore the reference within the Northern Territory Planning Scheme Amendment is inappropriate and should be removed. Housing Options There is a considerable amount of research and investigation that must take place to have a full understanding of the likely population growth, capacity of both the land and existing services and infrastructure, before a maximum potential can be determined. Once this understanding has been achieved, the policy can be developed to achieve the desired outcome. There is a clear intent to consolidate existing urban growth through the Northern Territory Government’s dual occupancy proposal. This proposal is limited however to targeting infill redevelopment opportunities within existing SD zoned allotments. The City of Darwin supports a broader approach and not limited to SD allotments in isolation in the interests of increasing housing affordability within Darwin. The City of Darwin recognises the need for and supports expanded housing choices, with a greater focus on temporary accommodation, retirement living and affordable housing. However a broader urban infill policy approach should be developed to support the housing needs. Design guidance is also required to facilitate appropriate development outcomes (e.g. providing infrastructure/services upgrading required). If you require any further discussion in relation to this matter please feel free to contact me on 8930 0505. Yours faithfully BRENDAN DOWD CHIEF EXECUTIVE OFFICER

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16 INFORMATION ITEMS AND CORRESPONDENCE RECEIVED 16.1 2012 National General Assembly of Local Government – Discussion Paper Document No. 2183356 (08/02/12) Common No. 2175114 THAT the incoming letter from the Chief Executive of the Australian Local Government Association (ALGA) dated 8 February 2012, relating to the 2012 National General Assembly of Local Government – Discussion Paper, Document Number 2183356, be received and noted. DECISION NO.20\() (28/02/12)

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17 REPORTS OF REPRESENTATIVES 18 QUESTIONS BY MEMBERS 19 GENERAL BUSINESS 20 DATE, TIME AND PLACE OF NEXT ORDINARY COUNCIL MEETING THAT the next Ordinary Meeting of Council be held on Tuesday, 13 March 2012, at 5.00 p.m. (Open Section followed by the Confidential Section), Council Chambers, 1st Floor, Civic Centre, Harry Chan Avenue, Darwin. DECISION NO.20\() (28/02/12) 21 CLOSURE OF MEETING TO THE PUBLIC THAT pursuant to Section 65 (2) of the Local Government Act and Regulation 8 of the Local Government (Administration) Regulations the meeting be closed to the public to consider the Confidential Items of the Agenda. DECISION NO.20\() (28/02/12) 22 ADJOURNMENT OF THE MEETING (MEDIA LIAISON)

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Documents

DARWIN CITY COUNCIL EIGHTY-FIFTH ORDINARY MEETING OF … · 9.1 Photo Slideshow - 70th Anniversary of the Bombing of Darwin Events Common No. 1855364 Mr Liam Carroll from Council