Land Strategy 2011–2015
Contents Introduction............................................................. 1 Strategic Planning Framework.............................. 2 Objectives and Outcomes...................................... 3 Approach.................................................................. 6 Stream 1 review.................................................. 8 Stream 2 review.................................................. 8 Assessment Criteria................................................ 8 Land classification............................................. 8 Community engagement.................................10 Ecological value...............................................10 Trees and vegetation........................................10 Character and appeal.......................................11 Accessibility......................................................11 Recreational value............................................11 Cost of maintenance.......................................11 Potential revenue from sale............................11 Potential purchase of land.............................12 Reporting................................................................13 Links........................................................................14 Glossary..................................................................15
City of Tea Tree Gully – Land Strategy 2011–2015
3
Introduction Open space is a valuable asset in any community and neighbourhood is often characterised according to the quality and creative uses of their public open spaces. Open space is an outstanding feature of our City and it is an asset that we want to preserve. The City of Tea Tree Gully has over 600 parks and reserves spread across the City totalling approximately 1,305 hectares. Council owns or manages 82% of this and the remainder is owned by the state or federal government. This amounts to twice as much open space as the average council in metropolitan Adelaide has. Our open spaces vary in size and function and are used for a diverse range of recreation and leisure activities, including small-to-large sporting grounds and reserves, neighbourhood playgrounds, BMX and skate parks, linear parks and civic or community spaces.
Maintaining and upgrading this open space is an ongoing financial commitment costing Council about $4.5 million each year, with each upgrade adding to this figure. Council needs to manage these ongoing and ever-increasing costs in an effective and financially sustainable way, while at the same time continuing to improve the quality, accessibility and functionality of our open spaces to meet the present and future needs of our community. In some areas there are small undeveloped parks and reserves often adjacent to open spaces improved with irrigated grassed areas, playgrounds and play spaces. Our strategic approach will be to carefully guide the management of open space to provide a quality amenity that is well used and valued by the community and that balances broader community needs with those that are more localised in nature.
City of Tea Tree Gully – Land Strategy 2011–2015
1
Strategic Planning Framework The City of Tea Tree Gully’s Strategic Plan1, City Master Plan2 and Open Space Strategy3 together form a strategic context for this Land Strategy. In particular, the Strategic Plan for 2011–2015 establishes directions for planning, with clearly stated outcomes that will help our City to achieve its vision statement:
“A vibrant lifestyle opportunity that celebrates innovation and excellence — your place, your home, your future” The strategic directions and outcomes embedded in the Land Strategy envisage a City in which: • Infrastructure, buildings and facilities are planned and maintained to meet the needs of current and future communities (1.1)
• Hubs of activity are located throughout the city where complementary community activities take place in multi-purpose facilities (1.2) • Long-term precinct plans4 are developed for the key Council recreation, cultural and community hubs identified in the City Master Plan (1.5) • The future provision, implementation, accessibility, management and maintenance of open space is guided by an Open Space Strategy (9.1.2). The Strategic Plan is underpinned by a hierarchy of Council strategies and policies, including this Land Strategy 2011–2015. See Figure 1.
Strategy
Strategic Plan
Strategies, policies and initiatives, incl. City Master Plan 2011-2040
Land Strategy 2011–2015
Delivery
Action plans
Department business plans
Internal work plans
2
City of Tea Tree Gully – Land Strategy 2011–2015
Figure 1: City of Tea Tree Gully Strategic Planning Framework
Objectives and Outcomes This Land Strategy will be used to inform the development of Council policies and procedures relating to the sale and purchase of land by the Council. The Land Strategy: • Identifies a process for engaging meaningfully with both the local community and the broader community • Establishes a set of assessment criteria to assist with making planning decisions • Supports the strategic rationalisation of open space assets in order to: • Improve the financial position of the Council by lowering debt • Use land sales proceeds to improve parks, reserves, streetscapes and other public areas across the City • Has strong links with the Strategic Plan, City Master Plan and Open Space Strategy. Most of our parks and reserves are classified as ‘community land’1 as defined by the Local Government Act 1999 and Council has considered from time to time whether there would be community benefit in moving away from this classification and exploring other options for use of some of these sites. These key objectives and outcomes of the Strategy are shown in Figure 2. City of Tea Tree Gully – Land Strategy 2011–2015
3
Objectives
Naturally Better via enhanced/more accessible open space
Stabilisation of borrowings (Long Term Financial Plan)
Amenity investment
Land sales
• Low accessibility/ utilisation • Meet strategic housing/ population needs
Land sale proceeds
50% towards lowering borrowings
% towards Local benefit
+ Figure 2: Land Strategy Objectives and Outcomes
4
City of Tea Tree Gully – Land Strategy 2011–2015
% towards Citywide benefit
50%
The land sales budget is linked to Council’s Long-Term Financial Plan. The reserves identified for sale will need to have an underlying value capable of meeting Council’s Long-Term Financial objectives. Additional budget revenue could support future housing development possibilities by generating confidence in small and medium-sized residential property investors. The potential income generated from sales is likely to be sustainable over the long term due to the following factors: • Increasing community demand for various types of housing • The limited number of private land holdings that are suitable for residential development • The extent of Council’s current land resources • Cost benefits associated with developing vacant land.
City of Tea Tree Gully – Land Strategy 2011–2015
5
Approach Review of the City’s land assets will be conducted in a strategic and coordinated manner. This will be done via a Stream 1 or Stream 2 review, depending on the locality. Key steps for the reviews are outlined in Figure 3.
Stream 1 Review
Stream 2 Review
The City Master Plan identifies a number of localities that will undergo detailed precinct planning over the next few years. Reserves that are located within a precinct6 or in close proximity to one will be included in Stream 1.
Some reserves are not located in or near a precinct. In those cases Council will engage with the local community about the open space in their neighbourhood. Some of these open spaces may be assessed (wholly or partly) as surplus to community needs. As with Stream 1 reviews, it may be desirable to develop design guidelines for some Stream 2 reserves that are proposed for sale, part-sale or upgrade.
Precinct plans will reflect a vision for the locality with the aim of improving amenity and character; they will boost economic and social activity, consider environmental sustainability and identify opportunities for greater housing diversity. Importantly, the plans will also consider the open space needs of the precinct and establish the preferred hierarchy of its linked open spaces. In the case of some reserves that are proposed for sale or part sale/ upgrade, it may also be desirable to develop appropriate design guidelines in consultation with community.
6
City of Tea Tree Gully – Land Strategy 2011–2015
Stream 1 Review
Stream 2 Review
Reserves in precincts
Reserves outside precincts
Discuss opportunities for reserves with local community (use assessment criteria)
Discuss opportunities for reserves with local community (use assessment criteria)
Develop Precinct Plans (includes identifying reserves for retention, upgrade and sale)
Identify reserves for retention, upgrade and sale
Establish conditions for sale, i.e. Develop performance guidelines (Include options for strategic development)
Deliver local and citywide benefits through Long Term Financial Plan and Capital Works Program Figure 3: Precinct Planning Process – Streams 1 and 2
City of Tea Tree Gully – Land Strategy 2011–2015
7
Assessment Criteria The following assessment criteria will be used to determine the impact on the local community before any decision is made on whether a Council reserve should be retained or sold: • Governance issues • Environmental value • Social value • Economic value.
8
Land classification (governance) The majority of Council’s reserve land is classified as ‘community land’. If Council decides to sell this land, the ‘community land’ classification would first need to be changed. Section 194 of the Local Government Act 1999 sets out a process for this, including the required community consultation. This process is outlined in Figure 4. If Council decides to proceed with an application for classification change, approval needs to be obtained from the Minister for State/Local Government Relations.
City of Tea Tree Gully – Land Strategy 2011–2015
Site selection, internal review/valuation
Community advised of Council’s decision
Report to Minister
Agent/offers if Minister approves
Council accepts contract
Council report to commence revocation
Council resolves to commence public consultation
Council decides to proceed
Advise Council of consultation outcomes
Council informed of Minister’s response
Council decides to NOT proceed
Community advised of Minister’s response
Community advised of Council’s decision
Land transfer
Figure 4: Process for revocation of community land (Local Government Act 1999)
City of Tea Tree Gully – Land Strategy 2011–2015
9
Community engagement (governance, social) Council recognises that community engagement is vital to any discussion regarding the sale of reserves and is therefore committed to engaging in dialogue with local communities at an early stage. Council’s Community Engagement (Public Consultation) Policy guides the consultation process relating to land sales and changes to ‘community land’ classification. It is more prescriptive than the process specified in the Local Government Act 1999, however, the two processes are aligned. An engagement strategy for each site will be endorsed by the Council at the start of each consultation process and will be based on the following principles:
Ecological value (environment) Council’s Ecological Mapping Report analyses the ecological value of all open space within the City. It considers site characteristics and relationships and assigns a value between two and ten, with two being the lowest and ten being the highest level of ecological value. Ecological value is determined by: • Size of land • Distance to core habitat • Proportion of surrounding open space in close proximity to sites • Extent of roads and sealed surfaces surrounding the site.
• Open and transparent disclosure
Thirty-three reserves have been identified as having significant ecological value and these are listed in the City Master Plan as sites of high environmental value.
• Engaging early and with clarity of purpose
Trees and vegetation (environment)
• Quality engagement processes, tools and methods
Significant trees are defined in the Development Act and Regulations and development approval is required for their removal or any other tree-damaging activity, including lopping or root damage. The existence of any significant trees on reserves that are identified for sale or development will need to be taken into consideration and these trees protected wherever possible.
• Inclusive participation
• Identification of outcomes • Opportunity to provide feedback.
10
City of Tea Tree Gully – Land Strategy 2011–2015
Character and appeal (environment)
reserve has amenities such as:
An assessment will be made about the extent to which the reserve contributes to the character and appeal of the neighbourhood. This can be affected by the degree to which the reserve is used, landscaped and maintained, what facilities it has, and whether it creates a sense of place for the community. For example, in some cases new houses with landscaped front gardens could contribute positively to neighbourhood appeal and character. Similarly, a large reserve could be developed partly for housing with the remainder of the site upgraded into a more attractive and functional reserve.
• Playgrounds
Accessibility (social) It is widely acknowledged within the recreation sector that 400–500 metres is a comfortable walking distance to bus stops and other services for an able-bodied person. In the same way, all residents should be located within 400–500 metres of a local reserve to provide accessibility and to promote a healthy and active lifestyle.
Recreational value (social) Reserves are assessed in terms of either formal or passive recreation. The value of formal recreation is dependent on the size of the land, the quality of grassed areas and whether the
• Sporting infrastructure or equipment • Lighting • Formal pathways • Landscaping • Seating • Toilets • Picnic facilities • Drinking fountains.
Cost of maintenance (economic) Council has a mixture of parks and reserves that provide the community with a balance of recreation and leisure activities. The cost of open space maintenance is indicated by the operational costs for horticultural and general maintenance costs for sports fields. These costs total approximately $4.5 million per year.
Potential revenue from sale (economic) Reserve land considered suitable for sale will be assessed in terms of topography and physical attributes that may be desirable for the housing market, both for traditional housing lots and for medium to high-density development. Council owns a significant amount of land that City of Tea Tree Gully – Land Strategy 2011–2015
11
is suitable for this kind of development. With limited supply of land with suitable existing infrastructure and transport links, the income from such land sales can be expected to match property market returns, portion of which will be reinvested in the community.
Potential purchase of land (economic, environmental, social) Additional land should be considered for purchase where: • Existing open space is inadequate in certain neighbourhoods • New development is resulting in higher residential densities in established neighbourhoods • Needed to supplement existing infrastructure, e.g. watercourses and physical assets • Privately-owned land has significant conservation or recreation value.
12
City of Tea Tree Gully – Land Strategy 2011–2015
Reporting Sites for potential sale will be referred periodically to Council for consideration and subsequently to the community for their feedback. An engagement strategy for each site will be endorsed by the Council at the start of each process and the outcomes of this engagement will be reported back to Council and to the community. The Council and community will be advised of the Minister’s decision regarding any request to change the classification of ‘community land’ for the purpose of selling or developing the land.
City of Tea Tree Gully – Land Strategy 2011–2015
13
Links www.saplan.org.au www.plan4adelaide.sa.gov.au City of Tea Tree Gully: • Strategic Plan 2011–2015 • City Master Plan 2011–2040 • Asset Management Plans • City of Tea Tree Gully Ageing Strategy 2010–2015 • Open Space Strategy, 2010–2030 • Disability Discrimination Act Access Action Plan. The above documents can be found on Council’s website: www.teatreegully.sa.gov.au/page.aspx?u=970 Council policies: • Environmental Policy — states Council’s position with regard to its practices that impact on the environment of the City.
• Community Engagement (Public Consultation) Policy — fosters a culture of effective community engagement to support good decision making and to ensure that Council meets its obligations under the Local Government Act 1999 and other relevant Acts. This policy outlines the principles by which the City of Tea Tree Gully will communicate with, consult and involve its community regarding decisions that may affect them or that are likely to be of significant interest to them. • Sale and Disposal of Land Policy — establishes a framework of broad principles and criteria for the sale or disposal of assets and land. This policy will be amended to reflect any changed assessment criteria. The above policies can be found on Council’s website: www.teatreegully.sa.gov.au/page.aspx?u=607
• Risk Management Policy — establishes a framework for the management of risk enabling a consistent, efficient and effective approach. This policy defines the responsibilities of Council staff, formulates particular risk management strategies and promotes sound practices in this area.
14
City of Tea Tree Gully – Land Strategy 2011–2015
Glossary 1Strategic
Plan 2011–2015 — sets out a vision for our City during the next 30 years and provides clear directions to guide Council and the community towards achieving that vision.
4Precinct
Plans — establish a vision for the development of a precinct (see footnote 6 below), including action plans to achieve the vision.
2City
5Community
• Sites of high environmental value and key economic activity
6Precinct — a
Master Plan — is the physical expression of Council’s vision and objectives for our City during the next 30 years. The plan identifies:
• Areas of cultural interest • Key open space areas • Key multi-use community and recreation centres • Key Council community hubs • Urban renewal areas • Local and regional connections. 3Open
Space Strategy — provides ongoing guidance for Council in the management and development of the City’s open spaces and associated recreational facilities.
Land — all land (other than roads) owned or under Council’s care, control and management is generally classified as ‘community land’. place of specific or defined limits with an enclosed planning boundary. Precincts in the City Master Plan have an economic focus and a cultural focus and also include urban renewal areas such as major shopping areas, localities supporting a variety of housing densities and significant transit corridors. Some precincts may contain a ‘hub’ which is a focal point around which other things revolve or where a concentration of activity occurs. Hubs in the City Master Plan have a sporting and community centre focus.
City of Tea Tree Gully – Land Strategy 2011–2015
15
City of Tea Tree Gully
571 Montague Road, Modbury SA 5092 PO Box 571, Modbury SA 5092 Telephone 08 8397 7444 www.teatreegully.sa.gov.au