Redlands Planning Scheme Residential Development Position Paper

May 2002

balancing growth and lifestyle in the Redlands

Residential Development
1 Introduction 1 1 1 2 2

1.1 Background 1.2 Purpose of this Paper 1.3 Relevant Issues 1.4 Currency of Data 2

Current Planning Scheme: Approach Analysis (Strengths and Weaknesses) 3 3 7 8 9 9 13 14 16 20 22 24 27 27 27 27 27 27 27 28 29

2.1 General 2.2 Residential Provisions Strengths 2.3 Residential Provisions Weaknesses Analysis 3 Residential Development

3.1 Existing Residential Structure 3.2 Residential Activity 3.3 Residential Land Supply 3.4 Future Residential Growth 3.5 Residential Design & Character 3.6 State Agency Interests 4 5 5.1 5.2 5.3 5.4 5.5 Planning Implications Planning Strategy Areas Urban Efficiency Residential Land Supply Residential Density Residential Choice & Affordability Residential Design

5.6 Residential Amenity 5.7 Character Protection 6 References

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1 Introduction
1.1 Background
The following position paper addressing Residential Development, is one of twelve (12) position papers addressing key aspects of future land use and development policy in Redland Shire. The paper has been prepared as part of Stage 3 of the Redlands Planning Scheme project and is intended to inform the land use option identification and assessment process programmed to occur in Stage 4. The outcomes of Stage 4 will be reflected in the Redland Shire Planning Scheme Statement of Proposals due to be released in early 2002. Planning position papers prepared as part Stage 3 are as follows: 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. Population & Demographics Residential Development Industry & Business Commercial & Retail (Centres) Rural Conservation & Open Space Constraints Environmental Management Cultural Heritage Community & Social Development Transport Infrastructure

1.2 Purpose of this Paper

The residential areas of Redland Shire accommodate the urban population and have critical bearing on the maintenance of many of the unique lifestyle attributes of the Shire. Like many other urban areas throughout Australia, Redland Shire is experiencing sustained population growth and corresponding levels of urban expansion and intensification. Such growth has been required to respond to market issues including the ageing of the population, reduced household size and changes in demand for alternative styles of accommodation. This paper examines the existing patterns of urban and rural residential development, the key factors and trends influencing the supply, demand and location of residential land, and the implications for future urban growth. The development of strategies to deal with future residential development in Redland Shire are necessarily based on analysis of the existing residential market and an assessment of the future capacity of the Shire to absorb projected population growth.

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1.3 Relevant Issues
The following paper necessarily considers a range of issues relevant to future residential development in the Shire. These include: Future Residential Needs -The quantum of residential land required to accommodate projected population growth; Location of Residential Growth -Nomination of future residential growth areas; Urban Efficiency -The need to limit urban sprawl and promote an efficient urban pattern; Residential density - The intensity and form of residential development; Housing choice Promoting the availability of a range of housing sty les; Housing affordability The economic capacity to access appropriate housing; Residential design - The design integrity of residential development having regard to architectural merit, energy efficiency and climate conscious design principles; Residential amenity - Promotion of more pleasant and livable residential areas; Heritage/Character Protection - Maintenance of residential heritage and character values.

1.4 Currency of Data

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

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2 Current Planning Scheme: Approach Analysis (Strengths and Weaknesses)
2.1 General
Residential provisions under the 1988 Planning Scheme include those contained within the Strategic Plan, Development Control Plans, and the Zoning schedule. The primary attributes of the existing regulatory framework as it applies to residential development is summarised in Figure 2.1: Figure 2.1 Residential Development Existing Regulatory Elements Planning Scheme Control Element Control Element Component Description
Strategic Plan Preferred Dominant Land Use Urban Residential !

Key Features
Designates areas intended to accommodate primary concentration of urban residential development Primarily provides for detached housing, but also permits multiple dwelling, small lot and dual occupancy forms. Preferred Density range 10-15 dwellings/hec tare Permits non-residential support facilities. Full urban servicing Designates areas intended to accommodate a variety of housing forms including multiple dwelling developmentat varying densities. Primarily provides for cluster or townhouse forms. Preferred Density range up to a maximum of 100 persons / hectare Permits non-residential support facilities. Full urban servicing !

Locational Relevance All urbanised suburbs

! ! Preferred Dominant Land Use Medium Density Residential ! !

! ! ! !

! Thorneside ! Birkdale ! Wellington Point ! Ormiston ! Capalaba ! Cleveland ! Victoria Point ! Redland Bay

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Planning Scheme Component Control Element
Preferred Dominant Land Use

Control Element Description

Residential Low Density !

Key Features
Designates areas intended to accommodate a low density residential environment within the main urban settlement areas of the Shire. Primarily provides for detached housing on large allotments of around 2000m 2 Most areas currently developed for this purpose. Full urban servicing Designates areas primarily intended to accommodate detached residential allotments of around 6000m 2 Building envelope controls to limit land clearing Provides for detached housing in an open semi-rural environment All urban servicing except sewerage required Specific planning intents for defined localities. Nature of preferred development and land use subject to individual guidelines. Location specific development guidelines ! ! ! ! ! ! !

Locational Relevance Thorneside Wellington Point Ormiston Alexandra Hills Thornlands Victoria Point Redland Bay

! ! !

Preferred Dominant Land Use

Park Residential

! ! ! Preferred Dominant Land Use Specific Planning Intent ! !

! Capalaba ! Alexandra Hills ! Thornlands ! Mt Cotton

! Wellington Point ! Birkdale ! Mt Cotton ! Thornlands ! Victoria Point ! Shire Wide ! Cleveland ! Point Lookout ! Capalaba ! East Thornlands ! Redland Bay Areas included in the zone throughout the Shire.

Development Control Plans

DCP 1 Shire Wide DCP 2 Cleveland DCP 3 Point Lookout DCP 4 Capalaba DCP 5 East Thornlands Redland Bay DCP Zone

Preferred Planning Intents Supplementary Tables of Development

Zoning Schedule

Residential A

! !

Provides primarily for detached housing Makes provision for dwelling houses to be approved without consent, but subject to

Subject to a maximum density of 60 persons / hectare

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Planning Scheme Component Control Element Control Element Description Key Features
conditions of approval on allotments greater than 450 sqm Other permissible residential uses include dwelling houses, relatives apartments, multiple dwellings 1, accommodation units and community dwellings. Full urban servicing required Provides primarily for higher density, multiple unit accommodation Makes provision for dwellings to be approved with consent on allotments less than 450 sqm Other permissible residential uses include dwelling houses, relatives apartments, accommodation units and community dwellings. Full urban servicing required. Locational Relevance

! Zone Residential B ! !

Zone

Residential Low Density

! ! !

! ! Zone Park Residential !

Provides primarily for detached housing on large allotments. Min allotment area 2000m 2 6000m 2 Other permissible residential uses include dwelling houses, relatives apartments, accommodation units and community dwellings. Multiple Dwellings are non-preferred. Full urban servicing required Provides primarily for Rural Residential

Areas included in the zone throughout the Shire. Primary concentrations of land included in this zone occur on lands adjoining the major commercial centres of Cleveland and Capalaba and associated nodes along the Cleveland Branch Railway (Ormiston, Wellington Point, Birkdale and Thorneside) ! Birkdale ! Alexandra Hills ! Thornlands ! Redland Bay

! !

Capalaba Thornlands

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Planning Scheme Component Control Element Control Element Description
! !

Key Features
development. Min allotment area 6000m 2 Other permissible residential uses include dwelling houses, relatives apartments, accommodation units and community dwellings. Multiple Dwellings are non-preferred. Partial Servicing (excluding sewerage and underground drainage) Provides a set of performance based standards to cover all aspects of multiple dwelling development. Requirement to submit site analysis plan, development summary, statement of compliance, street character and context analysis and site development plans with development applications. Development applications assessed against the following design elements: ! Streetscape amenity; ! Building size and bulk; ! Building setback and site coverage; ! Building unit design and appearance; ! Car parking and site access; ! Landscaping and open space; ! Climatic design; ! Visual and acoustic privacy; ! Security; ! Site facilities;

Locational Relevance Sheldon ! Birkdale

! !

Transitional Planning Scheme Policy

Residential Code for Multiple Dwelling Development 2001

Policy

All urban land where multiple dwellings are permissible .

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Planning Scheme Component Control Element Control Element Description
! Transitional Planning Scheme Policy Residential Code for Small Allotment detached Housing under 600m 2 !

Key Features
Earthworks and site drainage; !

Locational Relevance

The planning scheme allows allotments under 600m 2 with a frontage less than 20 metres. These guidelines provide for the design and development on allotments below this area to a minimum area of 300m 2 and with a minimum frontage of 10 metres. Development is assessed against the following elements: ! Building envelope and siting; ! On site car parking and access; ! Private open space; ! Visual and acoustic privacy; ! Security; ! Energy conservation; ! Dwelling entry and interior; ! Site facilities; ! Building appearance; ! Walls and fences; and ! Construction details.

All urban land where small lot housing is permitted.

2.2 Residential Provisions Strengths

! ! ! ! The Strategic plan includes broad strategies for the design and location of residential development that establishes the basis for more detailed planning controls. The inclusion of the Integrated Local Area Planning principles in the planning scheme (Strategic Plan) that provides a broad strategic basis for this concept. The inclusion of specific Development Control Plans relating to areas such as East Thornlands, Cleveland, Point Lookout, etc. The designation of medium density development around centres and public transport nodes.

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! ! ! The designation of land for a broad range of housing types. Housing mix opportunities are under defined controls. The development of housing at Point Lookout that compliments and enhances the character of the township. Specific planning controls for multiple dwelling development and small lot housing.

2.3 Residential Provisions Weaknesses Analysis

! The desired densities prescribed by the Strategic Plan for the Urban Residential designation have not been realised by actual development. The designation of land as Residential Low Density that is provided with full urban services is an inefficient form of urban development. The lack of clear controls in those areas included within Specific planning intents. The multiple dwelling code includes acceptable solutions that are performance-based criteria. Despite the existence of Medium Density designated land around centres and transport nodes, further land is required to be designated to ensure grater efficiencies of public transport and greater vitality and vibrancy of centres. According to the development industry the multiple dwelling policy is too complicated for smaller developments. The subdivision provisions as contained in the Planning Scheme are in need of updating and review. There is a lack of Development Control Plans in growth areas such as Redland Bay. The SMBI subdivisions give no consideration to topography, road access, suitability for development and sustainability of development. According to the development industry the small lot code (particularly, the acceptable solutions of the code) and the building envelope controls are very restrictive.

! ! ! ! ! ! ! ! !

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3 Residential Development
3.1 Existing Residential Structure
3.1.1 Dwelling Structure Statistics reveal that between 1986 and 1996 while the resident population of Redland Shire increased from 60,231 persons to 103,082, the Shire also experienced an increase in total dwellings from 20,920 to 37,996. This contributed to a corresponding albeit slight reduction in average persons per dwelling from 2.88 in 1986 to 2.71 in 1996. As illustrated in Figure 3.1.1 the most notable increase was experienced in the Separate House category that increased by a total of 12,171 dwellings or 69.5% over the ten years to 1996. Despite the absolute increase in overall dwelling numbers, declining dwelling occupancy reflects broader trends of shrinking household size coupled with the inherent ageing of the Shires population. Figure 3.1.1 Redland Shire - Number of Dwellings by Dwelling type.

Dwelling Type
Separate House Semi Detached Other Dwelling Not Stated Unoccupied Dwelling

1986
17502 644 647 125 2002

1991
24328 1470 687 101 2724

1996
29673 3725 575 980 3043

Total

20,920

29,310

37,996

Source: QDLGP, (1998) 1996 Census Report Queensland Planning, Information and Forecasting Unit, Queensland DepartmentofLocalGovernment and Planning, p.61

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

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Figure 3.1.2 Redland Shire Dwelling Structure

Figure 3.1.2 - Dwelling Structure - Redland Shire 1986-1996

30000 25000 20000 15000 10000 5000 Semi Detached Other Dwelling Unoccupied Dwelling Separate House Not Stated 0 1986 1991 1996

The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996 accounted for 78.09 % of the Shires total dwelling stock. This is indicative of the low-density development trends that have typified residential development in the Shire. Notwithstanding the dominance of single unit detached development, an increasing proportion of the population is being accommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996. This suggests increased availability and popularity of non-detached housing forms2. To date, the growing importance of more intense form of housing stock has however been indicative of changing lifestyle trends rather than density -related planning intervention. Figures 3.1.3 and 3.1.4 illustrate dwelling structure as a proportion of total dwelling stock. Figure 3.1.3 Proportion of total housing stock by dwelling type Dwelling Type Separate House Semi Detached Other Dwelling Not Stated Unoccupied Dwelling Total 1986 17502 644 647 125 2002 20920 % of total Housing Stock 83.67 3.07 3.09 0.6 9.56 100 1991 24328 1470 687 101 2724 29310 % of total Housing Stock 83 5.01 2.34 0.34 9.29 100 1996 29673 3725 575 980 3043 37996 % of total Housing Stock 78.09 9.8 1.51 2.57 8 100

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

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Figure 3.1.4 Proportion of Total Housing Stock by Dwelling Type

Figure 3.1.4 - Proportion of Total Housing Stock by Dwelling Type

% of Total Dwellings

Separate House

90 80 70 60 50 40 30 20 10 0

1996 Semi Detached Other Dwelling Unoccupied Dwelling Not Stated 1986

1986 1991 1996

Dwelling Type

3.1.2 Dwelling Occupancy Figures 3.1.5 and 3.1.6 illustrate dwelling occupancy by dwelling type of Redland Shire between 1986 and 1996. Figure 3.1.5 Redland Shire Dwelling Occupancy by Dwelling Type 1986-1996 Dwelling Type 1986 1991 Total Av. Person / Total Av. Person / Dwelling Dwelling Separate House 17,502 3.1 24,328 3.1 Semi-Detached 644 1.8 1,470 1.8 Other Dwelling 647 2.0 687 1.9 Not Stated 125 2.9 101 3.1 Total/All Occupied Dwellings 20,920 3.1 29,310 3.0

Total 29,673 3,725 575 980 37,996

1996 Av. Person / Dwelling 3.0 1.8 1.7 2.4 2.8

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Figure 3.1.6 Average Dwelling Occupancy by Dwelling Type 1986 - 1996
Redland Shire Dwelling Occupancy by Dwelling Type

All Dwellings

Other Dwellings

Semi-detached

Separate House

0.5

1.5

2.5

3.5

Average No. Persons 1986 1991 1996

On a Shire-wide basis average occupancy levels have tended to decline from 3.1% in 1986 to 2.8 in 1996. Reductions in occupancy have been confined to the separate house and other dwelling category, while semi-detached dwellings have maintained stable occupancy levels of 1.8 persons per dwelling since 1986. In respect of the mainland areas of the Shire, occupancy rates tend to vary depending on the locality concerned. Average occupancy levels on the basis of available dwelling statistics for 2001 are illustrated in Figure 3.1.7 Figure 3.1.7 Mainland Dwelling Occupancy 2001

Suburb
Alexandra Hills Birkdale Capalaba Cleveland Mount Cotton / Sheldon Ormiston Redland Bay Thorneside

2001 Mainland Dwellings

5617 4308 5826 5030 1354 1857 2685 1472

2001 Mainland Population

18364 13303 17952 13351 4266 5026 7474 3546

Persons / Dwelling
3.3 3.1 3.1 2.7 3.2 2.7 2.8 2.4

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Suburb
Thornlands Victoria Point Wellington Point Total

2001 Mainland Dwellings

2337 3851 3010 37347

2001 Mainland Population

8231 11949 8486 111948

Persons / Dwelling
3.5 3.1 2.8 3.0

Figure 3.1.7 suggests a theoretical occupancy ratio of approximately 3.0 persons /dwelling for the mainland parts of the Shire. These figures are not however based on a complete count of all actual dwellings 3 and are distorted to some extent by the absence of Island dwellings that traditionally have been characterised by low average occupancy levels. On the basis of the preceding considerations and Shire-wide trends of marginal occupancy decline since 1996, an average dwelling occupancy of 2.7 persons / dwelling has been assumed for planning purposes.

3.2 Residential Activity

Dwelling activity provides an indication of residential demand and associated levels of urban residential growth. Dwelling approvals between 1991-92 and 1999-2000 are illustrated in Figure 3.2.1.
2000 1800 1600 1400 1200 1000 800 600 400 200 0 1991- 1992- 1993- 1994- 1995- 1996- 1997- 1998- 199992 93 94 95 96 97 98 99 00 Year Houses Other Total

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

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

No.Approvals

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3.3 Residential Land Supply
3.3.1 Broadhectare Land Supply The Redland Shire Broadhectare Study 4, completed in June 2000, provides a measure of future residential supply and residential activity 5. Broadhectare analysis categorises land as either Urban Residential6 or Lower Density Residential 7. As at June 2000, broadhectare land identified potentially available for urban or low density residential purposes totalled 925 hectares. This was comprised of 775 hectares available for urban residential use and 150 hectares available for Lower Density Residential use. Figure 3.3.1 summarises available broadhectare land stocks as at June 2000. Figure 3.3.1 Broadhectare Land Stocks (hectares) Redland Shire 2000 Time Frame 0-2 years 2-5 years 5-10 years 10+ years Total Urban Residential 129 375 271 0 775 Lower Density Residential 0 60 90 0 150 Total 129 435 361 0 925

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

The distribution of available land stock by suburb is summarised in Figure 3.3.2 Figure 3.3.2 Redland Shire Broadhectare Stock by Statistical Local Area (hectares) SLA Total Urban Land Stock Total Low Density Residential Land Stock
Alexandra Hills Birkdale Capalaba Cleveland Ormiston Redland Bay Sheldon-Mt Cotton Thorneside Thornlands Victoria Point Wellington Point Redland (S) Balance Total 4 64 10 32 22 319 0 2 194 66 57 5 775 0 0 15 0 0 4 0 0 110 21 0 0 150

Combined Total
4 64 25 32 22 323 0 2 304 87 57 5 925

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

4 5

Queensland Government (2000) Redland Shire Broadhectare Study, Planning Information and Forecasting Unit, Brisbane. Broadhectare land is that considered suitable, available and intended to be serviced for residential use. This land may be zoned for residential, rural or other purposes provided that the Strategic Plan intent is urban. 6 Land typically yielding between 4 to 16 residential dwellings per hectare 7 Land yielding from 0.2 to 4 dwellings or lots per hectare depending on minimum allotments sizes under the relevant Planning Scheme. Lower density residential development is generally known as rural residential and is not provided with reticulated sewerage services.

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As can be seen as at June 2000, the highest broadhectare land supply is evident in the southern mainland growth areas of Redland Bay, Thornlands and to a lesser extent Victoria Point. This highlights the role of this area as the Shires primary urban development growth front. A comparison of broadhectare land stocks between 1996 and 2000 indicates that Urban Residential land stocks have increased from 658 hectares to 775 hectares, an increase of 117 hectares over the period. Conversely Lower Density Residential land supply has decreased significantly from approximately 650 hectares to 150 hectares between 1996 and 2000. 3.3.2 Broadhectare Land Consumption Changes to Broadhectare land supply occur through the consumption of land stocks through subdivisional activity, the more specific identification of constraints affecting development and/or amendments to the Planning Scheme which affect land supply. Figure 3.3.3 illustrates the subdivisional activity of parcels less than 5 hectares in area in Redland Shire between January 1996 and December 1999. Figure 3.3.3 Redland Shire Subdivision Activity by Land Parcel Size Jan 1996 Dec 1999 Lot Size 2 0-249m 250-399m 2 400-599m 2 2 600-999m 1000-1999m 2 2000-3999m 2 4000-9999m 2 10,000-19,999m 2 20,000-50,000m 2 50,000 + m 2 Total No. Lots 134 69 275 2045 246 113 162 561 43 44 3648 Area (Hectares) 0.50 2.39 13.48 148.66 33.28 29.94 101.24 219.48 139.99 852.55 688.96

As indicated in Figure 3.3.3, a total of 3648 allotments with a combined area of 688.96 hectares were created between 1996 and 2000. The majority of allotment production was in the 600m2 to 999m2 category with a total of 2045 allotments created, followed by the 400-599m2 grouping within which 275 allotments were created. If the production of allotments between 400-1999m2 is taken as a surrogate measure of conventional urban allotment demand, it can be seen that a total of 2566 allotments at an average of 642 allotments per annum were produced during the 1996 1999 period.

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3.4 Future Residential Growth
3.4.1 Future Population Growth Redland Shire is expected to experience sustained population over the planning period, with the total Shire population growing from 118,021 persons in 2001 to 168 805persons by 2016. Notwithstanding the locational and capacity choices made by Council as part of the land use option assessment and selection process, the vast majority of population growth will be accommodated in the mainland areas of the Shire, with the mainland population projected to increase from 111,756 persons in 2001 to 157112persons in 2016. Figures 3.4.1 and 3.4.2 indicate the annual growth in Shire population over the planning period. Figure 3.4.1 Redland Shire Projected Population Growth 2001 -2016 Year 1996 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 Shire Projected Population 103082 115051 118218 121533 125030 128586 132221 135906 139551 143037 146551 150092 153165 156207 159383 162569 165769 168805 Mainland Projected Population 97811 109044 111756 114392 117206 120164 123321 126675 130081 133347 136603 139794 142489 145229 148163 151155 154200 157112

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Figure 3.4.2 Redland Shire Projected Population Growth 2001 -2016 Total Redland Shire Population Projections 2000 - 2016
180000 160000 140000 120000 100000 80000 60000 40000 20000 0

00

01

02

03

04

05

06

07

08

09

10

11

12

13

14

15

20

20

20

20

20

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20

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3.4.2 Residential Population Capacity As part of investigations to identify future residential land requirements, a capacity analysis of existing residential areas within the Shire was undertaken. This analysis was intended to supplement existing broadhectare investigations undertaken by the Planning Information & Forecasting Unit (PIFU) of the Department of Local Government and Planning (PIFU). The PIFU capacity analysis is confined to undeveloped land above 0.8 hectares in area, and accordingly does not reveal potential and unrealised capacity of lands under 0.8 hectares in area. The assessment of actual capacity for planning purposes relies on the accurate identification of: ! ! ! 1. Residential Land Availability Assumed Residential Density Dwelling Occupancy Land Available for Future Residential Development

Broadhectare assessments o land availability in the Shire are limited to the identification of lands above 0.8 hectares in f area. The assessment of practical capacity sought to undertake a fine grain analysis of land availability corresponding with the following minimum allotment sizes for land included under the residential preferred dominant land use categories of the present Strategic Plan. Preferred Dominant Land Use Category
Medium Density Residential Urban Residential Residential Low Density Park Residential Special Planning Intents

Allotment Size for Capacity Calculation Purposes

800m 2000m 8000m 8000m All

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

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2. Assumed Density The calculation of population capacity was based on an evaluation of actual densities achieved under a series of recent development scenarios within the Shire. This permitted achieved density calculations to be derived for each preferred dominant land use category. For capacity calculation purposes the following dwelling/hectare density assumptions were derived: Preferred Dominant Land Use Category
Medium Density Residential Urban Residential Residential Low Density Park Residential Specific Planning Intent 1 Specific Planning Intent 2 Specific Planning Intent 3 Specific Planning Intent 4 Specific Planning Intent 5 Specific Planning Intent 6

Dwelling/hectare density assumptions for Capacity Calculation Purposes 44.1 10.2 3.9 1.4 10.9 0.0 5.7 1.2 8.3 9.9

3.

Dwelling Occupancy

In accordance with the findings of section 3.1.2, a dwelling occupancy ratio of 1.8 persons/multiple dwelling and 3 persons /dwelling (urban residential, residential low density, park residential and Specific Planning Intents) has been assumed for planning purposes. 4. Capacity Analysis Findings Figure 3.4.3 illustrates the results of the residential capacity analysis for the Shire.

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Figure 3.4.3 - Redland Shire Population Capacity - Mainland Sliding Area Analysis Approach
Suburb
Alex Hills Birkdale Capalaba Cleveland Mount Cotton/Sheldon Ormiston Redland Bay Thorneside Thornlands Victoria Point Wellington Point

PDLU Designation

Total Area (ha)

28.534 79.360 150.821 69.808 99.154 41.395 295.201 8.003 429.334 155.185 108.962

Population Increase
782 2921 2594 3245 1761 1337 8313 341 6826 4109 4430

Capacity Population
19146 16224 20546 16596 6027 6363 15787 3887 15057 16058 12916

Mainland Capacity Figure:

North Stradbroke Island Southern Moreton Bay Islands (assumed) Coochiemudlo Island Redland (S) Bal. Population 2016

1466

36659

148607
3095 11845 700 15640

The following conclusions may drawn from the Residential Capacity Analysis for the mainland areas of the Shire: ! Redland Shire is expected to experience sustained population growth over the planning period, with the total Shire population growing increasing to 168 805 persons by 2016. As the dominant component of overall Shire growth, the mainland population is projected to grow 157,112 persons by 2016. Lands designated for residential purposes under the existing Strategic Plan preferred land use allocations on the mainland have a total population capacity of 148 607 persons based on achieved density;

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! ! On the basis of maximum permitted density 8 the population capacity increases significantly to 160 034 persons; Based on current growth rates and assuming no augmentation of the current land supply outside of areas presently designated for urban uses, it is estimated that spare residential land capacity will be exhausted by late 2012 or earlier, based on current trends; Based on a projected mainland population of 157 112 persons by 2016, further land supply or density allocations sufficient to accommodate an additional 8 505 persons will be required during the planning period.

3.5 Residential Design & Character

A key component of the Shires Community Planning process involved addressing those elements critical to community character and lifestyle. A range of issues related to the design and character of residential development were identified as critical to the maintenance of Shire character and lifestyle values. Issues of residential design and character relevant to the preparation of the Planning Scheme may be summarised as follows: 3.5.1 Residential & Community Character Historically, Redland Shire consisted of small rural communities clustered around small centres such as Redland Bay, Victoria Point, Cleveland and Wellington Point. Residents of these areas identified clearly with these centres. Increased population growth levels has however caused much of the urban fabric of the Shire to meld together with much individual identity of alternative localities within the Shire being lost or modified significantly. A key finding of the Shires community planning process was that many Shire residents believed residential areas lacked individual character and identity 9, with many areas displaying a homogeneous character typical of the outer sprawling suburbs of Brisbane. It was also questioned whether in the future, the maintenance of residential character will become an issue the villages versus the suburban estates. In this respect, the need to retain sense of place and to foster community identity was seen as a critical planning outcome for the Shire. In an attempt to reverse or stem the melding or joining of communities, the 1998 Strategic Plan as a result of the Vision 2005 process tried to focus (in a land use sense) on the building of local communities and preserving their individual sense of place and character. This was to be achieved by encouraging a d esired urban settlement form that incorporated physical breaks, land use controls or appropriate building design. This aim has been achieved with varying levels of success throughout the Shire. Further work is however required with the refinement of controls at a local and finer grade level. It is also apparent that Special Planning Intent areas, one of the key mechanisms used to secure breaks between communities, have proved to be ineffective. This has however primarily arisen from the structure, approach and lack of clarity inherent in the controls concerned. While the need to promote and achieve breaks between communitys remains apparent, the vehicle by which this is achieved under the new Planning Scheme requires careful consideration. A clear articulation of non-urban planning intent supported by more conventional land use controls (eg. the use of rural, open space designations, subdivision controls etc) is likely to provide a more certain land use outcome in such areas. Special Planning

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

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

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intent areas that no longer achieve their intended purpose could be considered under alternative land use scenarios, particularly given the constraints on augmenting broadhectare land supply over the planning period. 3.5.2 Energy Efficiency & Climatically Conscious Design The population growth pressures being experienced within the Shire has not only resulted in a change in the pattern of urban development but has also resulted in a change in the range and style of housing types. Traditionally the housing stock consisted largely of single detached dwellings that were constructed of wooden materials in the typical Queenslander architectural vernacular. The dwellings included verandahs, eaves and were responsive to the sub-tropical climate. The built environment of the Shire is still defined largely by low rise development. Construction materials have however changed from light weight building materials to masonry and brick. There has also been a departure from dwellings with open verandahs to standard dwellings with smaller outdoor living areas and a lack of eaves that are not responsive or sympathetic to the sub-tropical coastal climate. Further, the architectural style and treatment of many dwellings is not open or inviting from the street, but tends to be inward looking. This has obvious implications for the identity, sense of community and quality of life for new and developing urban areas. In many cases dwellings shut out the street because the car dominates the street. The continued construction of these housing types which also ignore solar orientation leads to a higher energy demand for heating and cooling, with such dwellings achieving lower rates of energy efficiency. A key objective of the new planning Scheme is to incorporate detailed design and housing controls which seek to promote residential design which is climatically conscious and energy efficient. 3.5.3 Housing Choice & Affordability Residential development within the Shire has been traditionally characterised by the predominance of single unit detached dwellings 10. This has contributed to a predominately low-density development pattern, particularly in the coastal areas of the Shire. Notwithstanding the dominance of single unit detached development, an increasing proportion of the population is being accommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996. This suggests increased availability and popularity of non-detached housing forms11. This trend towards multiple dwellings is expected to continue as a result of changing demographic structures, particularly the aging of the population and the corresponding reduction in average household size. Given changing demographic trends and gradual diminution in the residential land supply, it is essential that the new Planning Scheme actively promote a range of housing types to improve both housing choice and affordability. The provision of a wider range of housing types comprises a key component of associated strategies aimed at increasing residential densities in appropriate locations. Such strategies assume high significance as the available broadhectare residential land supply is diminished.

10 11

The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996 accounted for 78.09 % of the Shires total dwelling stock. Includes dual occupancy, units, townhouses and other medium density housing forms

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

In optimising planning outcomes associated with the above matters, and in effectively responding to anticipate population growth over the planning period, the issue of residential density looms as the primary residential policy issue. The perpetuation of low-density residential development patterns in an environment of constrained land supply is no longer sustainable. Clearly the allocation of additional land for medium density residential development is required under the new Planning Scheme to ensure sustainable residential capacity, efficiency, choice, character and environmental outcomes are achieved. 3.5.5 Heritage Protection The protection residential heritage values also comprises a key element of the Shires approach to the maintenance of residential character. Planning Scheme approaches to the protection of residential places of cultural or heritage significance need to be based on: 1. 2. 3. 4. The accurate identification of dwelling/sites of cultural or heritage significance; Definition of the elements and attributes worthy of conservation and/or protection, and the means by which this is best achieved; The identification or appropriate approval and assessment processes for places of cultural/heritage significance; and The codification of design and development standards to protect areas/sites of residential character significance.

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

3.6 State Agency Interests

State Agency interests with respect to Residential Development are summarised under the South East Queensland Regional Framework For Growth Management (RFGM). The RFGM identifies the key residential development State Interests as follows: 1. 2. Residential development should provide for a variety of housing types and densities that takes account of demographic and socio-economic characteristics. Residential densities should be increased in existing and new areas, particularly around major centres, railway stations, stops on high capacity transit routes and other transport interchanges. Residential development should be based on patterns of settlement which:

3.

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

New residential areas should be located in areas with high accessibility to efficient public transport services, or where such services can be relatively easily provided. The bulk of new residential development should occur as part of an existing or new neighbourhood of sufficient population size to allow for the development of local community facilities. Affordable housing and land should be distributed throughout the region to match community needs and be well located in relation to open space, recreation, services and employment densities and living environments

6.

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

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4 Planning Implications
Planning implications relevant to future residential development within Redland Shire include the following: Dwelling Structure ! ! ! Between 1986 and 1996 while the resident population of Redland Shire increased from 60,231 persons to 103,082, the Shire also experienced an increase in total dwellings from 20,920 to 37,996. Despite the absolute increase in overall dwelling numbers, declining dwelling occupancy reflects broader trends of shrinking household size coupled with the inherent ageing of the Shires population. The Shires dwelling structure is characterised by the predominance of separate detached dwellings which in 1996 accounted for 78.09 % of the Shires total dwelling stock. This is indicative of the low-density development trends that have typified residential development in the Shire. An increasing proportion of the population is being accommodated within semi-detached dwellings. Between 1986 and 1996 the number of semi-detached dwellings increased from 644 (or 3.07% of total dwelling stock) in 1986 to 3725 (or 9.8% of total dwelling stock) in 1996

Dwelling Occupancy ! On a Shire-wide basis average occupancy levels have tended to decline from 3.1% in 1986 to 2.8 in 1996. Reductions in occupancy have been confined to the separate house and other dwelling category, while semi-detached dwellings have maintained stable occupancy levels of 1.8 persons per dwelling since 1986. On the basis of preceding considerations, a dwelling occupancy ratio of 1.8 persons/multiple dwelling and 2.7 persons /dwelling (urban residential, residential low density, park residential and Specific Planning Intents) has been assumed for planning purposes..

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

Residential Land Supply ! As at June 2000, broadhectare land identified potentially available for urban or low density residential purposes totalled 925 hectares. This was comprised of 775 hectares available for urban residential use and 150 hectares available for Lower Density Residential use. The highest broadhectare land supply is evident in the southern mainland growth areas of Redland Bay, Thornlands and to a lesser extent Victoria Point. This highlights the role of this area as the Shires primary urban development growth front. A comparison of broadhectare land stocks between 1996 and 2000 indicates that Urban Residential land stocks have increased from 658 hectares to 775 hectares, an increase of 117 hectares over the period. Conversely Lower Density

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Residential land supply has decreased significantly from approximately 650 hectares to 150 hectares between 1996 and 2000. Land Consumption ! A total of 3648 allotments with a combined area of 688.96 hectares were created between 1996 and 2000. The majority of allotment production was in the 600m2 to 999m2 category with a total of 2045 allotments created, followed by the 400-599m2 grouping within which 275 allotments were created. If the production of allotments between 400-1999m2 is taken as a surrogate measure of conventional urban allotment demand, it can be seen that a total of 2566 allotments at an average of 642 allotments per annum were produced during the 1996 1999 period.

Future Population Growth ! ! Redland Shire is expected to experience sustained population over the planning period, with the total Shire population growing from 118 021 persons in 2001 to 168 805 persons by 2016. Notwithstanding the locational and capacity choices made by Council as part of the land use option assessment and selection process, the vast majority of population growth will be accommodated in the mainland areas of the Shire, with the mainland population projected to increase from 111 756947 persons in 2001 to 157 112299 persons in 2016.

Population Capacity ! Redland Shire is expected to experience sustained population growth over the planning period, with the total Shire population growing increasing to 168 805 persons by 2016. As the dominant component of overall Shire growth, the mainland population is projected to grow 157,112 persons by 2016. Lands designated for residential purposes under the existing Strategic Plan preferred land use allocations on the mainland have a total population capacity of 148 607 persons based on achieved density; On the basis of maximum permitted density 12 the population capacity increases significantly to 160 034 persons; Based on current growth rates and assuming no augmentation of the current land supply outside of areas presently designated for urban uses, it is estimated that spare residential land capacity will be exhausted by late 2012 or earlier, based on current trends; Based on a projected mainland population of 157 112299 persons by 2016, further land supply or density allocations sufficient to accommodate an additional 8 505 persons will be required during the planning period.

! ! !

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

12

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

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

Energy Efficiency & Climatically Conscious Design ! A key objective of the new planning Scheme is to incorporate detailed design and housing controls which seek to promote residential design which is climatically conscious and energy efficient. This is also a critical element in protecting some of the unique character attributes of the Shires residential housing stock.

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

Residential Density ! ! The perpetuation of low-density residential development patterns in an environment of constrained land supply is no longer sustainable. The allocation of additional land for medium density residential development is required under the new Planning Scheme to ensure sustainable residential capacity, efficiency, choice, character and environmental outcomes are achieved.

Heritage Protection ! The protection residential heritage values also comprises a key element of the Shires approach to the maintenance of residential character. Planning Scheme approaches to the protection of residential places of cultural or heritage significance need to be based on: ! ! ! ! The accurate identification of dwelling/sites of cultural or heritage significance; Definition of the elements and attributes worthy of conservation and/or protection, and the means by which this is best achieved; The identification or appropriate approval and assessment processes for places of cultural/heritage significance; and The codification of design and development standards to protect areas/sites of residential character significance.

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

5.2 Residential Land Supply

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

5.3 Residential Density

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

5.4 Residential Choice & Affordability

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

5.5 Residential Design

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

5.6 Residential Amenity

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

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

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6 References
1. 2. 3. Australian Bureau of Statistics (1998) Brisbane: A Social Atlas, Commonwealth of Australia, Canberra. Commonwealth Government of Australia (2000) Welcome to the Australian Bureau of Statistics, URL:http://www.abs.gov.au. Department of Natural Resources, Department of Local Government & Planning, QLD (1997) Planning Guidelines Separating Agricultural & Residential Land Users Department of Natural Resources, Department of Local Government & Planning, QLD Government, QLD. Qld Government (2000) State Planning Policy 1/00 Planning & Management of Coastal Development Involving Acid Sulfate Soils Department of Communication & Information, Local Government, Planning & Sport, Department of Natural Resources, QLD. Queensland Government (1997) State Planning Policy 1/97: Conservation of Koalas in the Koala Coast, Queensland Government, Queensland. Queensland Government (1998) 1996 Census Report Queensland, Department of Local Government and Planning, Queensland. Queensland Government (1998) Population Projections for Queensland, 1998 Edition, Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland. Queensland Government (1999) Household Projections for Queensland, 1999 Edition, Department of Communication and Information, Local Government and Planning, Queensland. Queensland Government (1999) Recent Population and Housing Trends in Queensland Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland. Queensland Government (2000) Housing Update: Queensland Dwelling Approvals to June Quarter 2000, Planning Information and Forecasting Unit, Department of Local Government and Planning, Queensland.

4.

5. 6. 7. 8. 9. 10.

11. Queensland Government (2000) Recent Population and Housing Trends in Queensland Department of Communication and Information, Local Government, and Planning, Planning Information and Forecasting Unit, Queensland. 12. Queensland Government (2000) Redland Shire, 2000 Edition: A Measure of Future Residential Land Supply, Department of Communication and Information, Local Government, Planning and Sport, Planning Information and Forecasting Unit, Queensland. 13. Queensland Government (2000) Regional Economic Report: Redland Shire, Queensland Treasury,; Queensland. 14. Queensland Government Background Information: Aged and Special Needs Accommodation, Queensland Government; Queensland. 15. Queensland Government, Office of Economic & Statistical Research Community Profiles Redland Shire

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16. URL:http://www.oesr.qld.gov.au/data/publications/community_cab/redlands/rer_redland.htm 17. Redland Shire Council (1995) Multiple Dwelling Development Survey, Planning & Environmental Services Program, November 1995, Redland Shire Council, Queensland. 18. Redland Shire Council (1996) Development Coastal Plan 3 : Point Lookout Redland Shire Council & Qld Department of Lands, QLD. 19. Redland Shire Council (1997) Strategic Plan Review: Planning Study Redland Shire Council, Queensland. 20. Redland Shire Council (1998) Design Standards for Developments, Redland Shire Council, Queensland. 21. Redland Shire Council (1998) Town Planning Scheme for the Shire Queensland Government, Queensland. 22. Redland Shire Council (1999) CD-ROM Redlands Heritage Study , Woods Bagot, Queensland. 23. Redland Shire Council (2000) North Stradbroke Island/Minjerribah Planning and Management Study: Draft Policies/Statement of Proposals for the Preparation of a Planning Scheme for North Stradbroke Island/Minjerribah, August 2000 Elliot Whiteing and Associates, Brisbane. 24. Redland Shire Council (2000) Aged Persons Accommodation Housing Strategy (including those with special needs), Redland Shire Council, Queensland. 25. Redland Shire Council (2000) Community Attitude Survey Final Report : Redland Shire Council AC Neilsen, Brisbane. 26. Redland Shire Council (2000) Draft Redland Shire Community Plan Redland Shire Council, Queensland. 27. Redland Shire Council (2001) Transitional Planning Scheme Policy : Impact of Transportation Systems on Urban Amenity Redland Shire Council, QLD 28. Redland Shire Council (2001) Cleveland Town Centre : Streetscape Design Guideline Manual Redland Shire Council, QLD. 29. Redland Shire Council (2001) Community Satisfaction: Benchmarking Survey Redland Shire Council, Queensland. 30. Redland Shire Council (2001) Explanatory Statement : Transitional Planning Scheme Policy Residential Code for Multiple Dwelling Development 2001 Redland Shire Council, QLD. 31. Redland Shire Council (2001) Vision 2005 & Beyond : Redland Draft Community Plan Redland Shire Council, Queensland. 32. Redland Shire Council Policy Documents : Adaptable Housing Environment, Plan & Develop Redland Shire Council, Queensland. 33. Redland Shire Council Policy Statement: Environmental Change Acquisition Policy, Redland Shire Council, Queensland.

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34. Redland Shire Council Policy Statement: Habitat Significance Areas, Redland Shire Council, Queensland. 35. Redland Shire Council, Redland Community Economic Development Board (1996) Final Economic Profile of Redland Shire An Input into the Redland Shire Strategic Plan Review, Abrett Consulting, Brisbane.

36. Redland Shire Council, Redland Community Economic Development Board (1996) Target Opportunities in Business and Industry Development and Future Employment Growth in Redland Shire, Abrett Consulting, Brisbane. 37. Redland Shire Council, Redland Community Economic Development Board (1996) Regional & Sub-Regional Constraints and Opportunities for Business and Industry Development in Redland Shire Final Report, Abrett Consulting, Brisbane. 38. Redlands District Committee on the Aging Inc. (2000) Social Activity Participation by Senior Australians RDCota, Queensland. 39. Robinson, D (2001) Preliminary Investigation into the Provision of a Business Incubator Facility and Associated Services in the Redland Shire Queensland. 40. South-East Queensland Regional Organisation of Councils (2001) Report to SEQROC on the Mayoral Delegation to the Minister for Environment, South-East Queensland Regional Organisation of Councils, Brisbane. 41. Tourism Queensland (2000) Moreton bay Marine Tourism Product Audit and Development Review: Tourism Assessment National Centre for Tourism. 42. Wong C, Lloyd K, Jenkington A, Fletcher P & Crowe A (2001) Social Isolation Report RDCota, Queensland. 43. Wood J, Thompson D & Erickson M (1992) Redland Shire: Open Space, Recreation, Conservation & Tourism Strategy , Loder & Bailey Consulting Group, Brisbane.

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