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DA15/0419
Toby’s Inlet Estate Lifestyle Retirement Village
62 Commonage Road, Quindalup
rpsgroup.com.au
DA15/0419
Prepared by:
Prepared for:
RPS AUSTRALIA EAST PTY LTD
TOBY’S INLET ESTATE PTY LTD
PO Box 746
BUSSELTON WA 6280
Unit 10 , 116 Mounts Bay Road
Perth WA 6000
T:
F:
E:
+61 (08) 9754 2898
+61 (08) 9754 2085
busselton@rpsgroup.com.au
T:
F:
E:
(08) 9486 9494
(08) 9486 9446
gordon@binyah.com.au
Client Manager: Matthew Young
Report Number: PR116568-2
Version / Date: Final – April 2015
rpsgroup.com.au
DA15/0419
IMPORTANT NOTE
Apart from fair dealing for the purposes of private study, research, criticism, or review as permitted under the Copyright
Act, no part of this report, its attachments or appendices may be reproduced by any process without the written consent
of RPS Australia East Pty Ltd. All enquiries should be directed to RPS Australia East Pty Ltd.
We have prepared this report for the sole purposes of Toby’s Inlet Estates Pty Ltd (“Client”) for the specific purpose of
only for which it is supplied (“Purpose”). This report is strictly limited to the purpose and the facts and matters stated in it
and do not apply directly or indirectly and will not be used for any other application, purpose, use or matter.
In preparing this report we have made certain assumptions. We have assumed that all information and documents
provided to us by the Client or as a result of a specific request or enquiry were complete, accurate and up-to-date. Where
we have obtained information from a government register or database, we have assumed that the information is
accurate. Where an assumption has been made, we have not made any independent investigations with respect to the
matters the subject of that assumption. We are not aware of any reason why any of the assumptions are incorrect.
This report is presented without the assumption of a duty of care to any other person (other than the Client) (“Third
Party”). The report may not contain sufficient information for the purposes of a Third Party or for other uses. Without the
prior written consent of RPS Australia East Pty Ltd:
(a)
this report may not be relied on by a Third Party; and
(b)
RPS Australia East Pty Ltd will not be liable to a Third Party for any loss, damage, liability or claim arising out of
or incidental to a Third Party publishing, using or relying on the facts, content, opinions or subject matter
contained in this report.
If a Third Party uses or relies on the facts, content, opinions or subject matter contained in this report with or without the
consent of RPS Australia East Pty Ltd, RPS Australia East Pty Ltd disclaims all risk and the Third Party assumes all risk
and releases and indemnifies and agrees to keep indemnified RPS Australia East Pty Ltd from any loss, damage, claim
or liability arising directly or indirectly from the use of or reliance on this report.
In this note, a reference to loss and damage includes past and prospective economic loss, loss of profits, damage to
property, injury to any person (including death) costs and expenses incurred in taking measures to prevent, mitigate or
rectify any harm, loss of opportunity, legal costs, compensation, interest and any other direct, indirect, consequential or
financial or other loss.
Document Status
Version
Purpose of Document
Orig
Review
Review Date
1
Draft Development Application
M. Young
C.Hearn
17.3.15
2
Draft Development Application
M. Young
G. Genat
30.3.15
3
Final Development Application
M. Young
D. Drown
01.04.15
Approval for Issue
Name
Signature
Matt Young
PR116568-2 / Final Development Application April 2015
Date
01.04.14
DA15/0419
Contents
EXECUTIVE SUMMARY ................................................................................................................ 1
1.0
APPLICATION DETAILS ...................................................................................................... 3
2.0
PROPOSAL........................................................................................................................... 4
3.0
4.0
2.1
Estate Design Intent ................................................................................................... 4
2.2
Site Master Plan .......................................................................................................... 4
2.3
Stage 1 – Development Application .......................................................................... 6
2.4
Landscaping and Open Space ................................................................................... 6
2.5
Water Management ..................................................................................................... 7
2.6
Transport and Access ................................................................................................ 7
2.7
Reports Required Prior to Development ................................................................... 9
LAND PARTICULARS ........................................................................................................ 11
3.1
Site Details ................................................................................................................ 11
3.2
Planning Context ...................................................................................................... 11
3.3
Site Characteristics .................................................................................................. 11
3.4
Surrounding Land Uses ........................................................................................... 12
3.5
Location..................................................................................................................... 12
3.6
Topography and Physical Characteristics .............................................................. 12
3.7
Surrounding Land..................................................................................................... 13
3.8
Acid Sulphate Soils .................................................................................................. 13
3.9
Servicing ................................................................................................................... 13
PROPOSAL WITHIN DISTRICT AND LOCAL CONTEXT .................................................. 16
4.1
Population Demand for Aged Persons Accommodation ....................................... 16
4.1.1
4.2
Dunsborough South Structure Plan ........................................................................ 18
4.2.1
4.3
Structure Plan Yields ..................................................................................... 20
Other Residential Developments in Dunsborough ................................................. 21
4.3.1
5.0
Population Change and Future Growth ......................................................... 17
Strategic Summary........................................................................................ 21
ASSESSMENT FRAMEWORK ........................................................................................... 22
5.1
Statutory Planning and Zoning ................................................................................ 22
5.1.1
City of Busselton Town Planning Scheme No. 21.......................................... 22
DA15/0419
5.1.2
6.0
Site Density ................................................................................................... 24
5.2
City of Busselton Local Planning Strategy ............................................................. 25
5.3
Dunsborough Lakes Development Guide Plan....................................................... 26
5.4
Lot 10 Commonage Road ......................................................................................... 27
5.5
Developer Contribution Plan.................................................................................... 28
5.6
Local Tourism Planning Strategy ............................................................................ 28
CONCLUSION..................................................................................................................... 30
Figures
Figure 1
Location Plan
Figure 2
Site Plan
Figure 3
Aerial Photograph
Figure 4
Dunsborough South Concept Plan
Figure 5
Town Planning Scheme No. 21 - Scheme Map
Figure 6
Local Planning Strategy Map
Figure 7
Dunsborough Lakes Endorsed Development Guide Plan
Appendices
Appendix A
Certificate of Title
Appendix B
Development Application Plans and Elevations
Appendix C
Overall Master Plan
Appendix D
Local water Management Strategy (under separate cover)
Appendix E
Transport Impact Statement (under separate cover)
DA15/0419
Executive Summary
RPS has been engaged by Toby’s Inlet Estate Pty Ltd to prepare a Development Application in support of
an application for an Aged Persons Home ‘Lifestyle Retirement Village’ on Lot 21 (No. 62) Commonage
Road, Quindalup. The subject site is presently owned by the Indian Ocean Island Estates Pty Ltd, and
Toby’s Inlet Estate Pty Ltd has the right to purchase the land.
The subject land is zoned Agriculture in the City’s Town Planning Scheme No. 21 (TPS21), and an ‘Aged
Persons Home’ can be permitted with the discretion of the City as long as it is advertised according to clause
10.4 of TPS21 (i.e. ‘A’ use under the Zoning Table – Table 1 of TPS21). The Council can therefore approve
an Aged Persons Home on the subject land similar in concept to that currently developed at the Novacare
Lifestyle Village site on 502-546 Bussell Highway, Broadwater.
The special town planning provisions that apply to Lot 21 already allow the site to be developed for an
intensive caravan park, with up to 15% permanent residents. Development of a Aged Persons Home
adjacent to the Dunsborough Lakes Holiday Resort and the Dunsborough lakes estate is consistent with the
density of development that can be developed on the site.
Council’s discretion is required to approve the development and to remove the current restrictive covenant
that applies to the land, restricting the development to a caravan park.
The City has developed a draft Local Planning Strategy. This Strategy places Lot 21 within the future
southern growth corridor for Dunsborough. City officers have also previously advised that this proposal is
well positioned, despite the strategic planning for this at a broad structure planning level having not yet been
commenced. We submit that development of the site in the short and longer term will not in any way
prejudice the future planning options for the southerly extension of Dunsborough. This is demonstrated by
the Dunsborough South Concept Plan, prepared with the intention to clarify the future planning context of
this site into the longer term.
As shown by the Development Application Plans and Elevations at Appendix C, the Development
Application is for a large retirement / lifestyle village (Aged Persons Home) which ultimately will include the
following components;
 Around 187 residential living units
 Serviced apartments and residential aged care
 A central community and recreational facility
 Caravan and trailer parking
 Communal open space
This application comprises the first stage development of the site. An overall master plan has been prepared
for the site to illustrate the ultimate build-out concept, and can be viewed in Appendix C.
In terms of the ultimate site layout the master plan comprises the following elements;
 Ultimately 187 Independent Living Units (ILUs) with community and recreational facilities.
 All development is setback 30m to all boundaries, including Commonage Road. Later stages will provide
develop within this side and rear setback area (as shown).
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DA15/0419
 Consideration will be given to retain significant vegetation/trees across the site.
 A 30m landscaped setback is proposed to Commonage Road, which could accommodate any future
widening.
 Access onto Commonage Road is limited. The access adjacent Dunsborough Lakes Road has been
offset, so as to avoid a 4-way intersection.
This report contains background information pertaining to the site, describes the proposed development and
addresses all relevant statutory planning and policy considerations. This report is accompanied by the
following reports and plans in support of the development application:
 Certificates of Title – Appendix A
 Development Application Plans and Elevations – Appendix B
 Overall Master Plan – Appendix C
 Local Water management Strategy – Appendix D (under separate cover)
 Transport Impact Statement – Appendix E (under separate cover)
The proposed development provides an appropriate outcome for the site, in terms of both use and design.
This report provides greater detail on the nature of the Development Application and provides an
assessment against the relevant requirements identified under the Town Planning Scheme and relevant
statutory planning instruments.
Page 2
DA15/0419
1.0
Application Details
Development Sought:
Construction and use of an ‘Aged Persons Home’ as
defined in the City of Busselton Local Planning
Scheme No. 21.
RPS Australia East Pty Ltd
Applicant:
For Toby’s Inlet Estate Pty Ltd
PO Box 749
Busselton WA 6280
Mr Matt Young
Manager Busselton
Contact Persons:
P: (08) 9754 2898
M: 0439 868 502
E: matt.young@rpsgroup.com.au
Cover
1. Aerial Visualisation
2. Village Master Plan
3. Community Facilities Stage 1
4. Village Staging plan
5. Community Facilities Staging Plan
6. Site Plan (Significant Tree Overlay)
7. Community Facilities Elevations
Development Application Plans and Elevations:
8. Concept Development - Illustrations
9. Concept Development - Village Features
10. Concept Development – Aesthetic & Materials
11. Concept Development – Home Design
12. House Designs – Wagtail
13. House Designs – Corella
14. Concept Development – Kookaburra
15. Concept Development - Wattlebird
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DA15/0419
2.0
Proposal
2.1
Estate Design Intent
The Toby’s Inlet Estate has been planned to provide an attractive purpose designed retirement village and
residential care for seniors and retirees living and wanting to ‘downsize’ and live in the south west region of
WA at Dunsborough. Toby’s Inlet Estate has been designed specifically for seniors ‘over 65s’ and will cater
for easier aging and with facilities and services that provide and encourage resident participation, social
interaction and village community support.
The village is orientated around the community facilities and a central pedestrian and vehicle boulevard. Eco
friendly independent living units (ILUs) will be developed in clusters of 15 to 20 around the central boulevard
and community facilities to create distinct smaller groupings within the larger village layout (Appendix B,
Plan 9 and 10). Various alternative accommodation solutions will be offered on site to cater for either
couples or single residents. These ILUs will be leased to the residents, and the estate will not be subdivided
or strata titled.
The community facilities and ILUs have been designed to maximise energy efficiency, lower water
consumption and capitalise on solar orientation (Appendix B, Plan 11). Rainwater will be retained on-site for
reticulation to landscaped areas and solar energy panels will be mounted on roof tops.
The community facilities have been designed in response to environmental considerations and the
enjoyment of the residents and future retirement community. The central community courtyard is encircled by
spacious verandah walkways with access to the various community facilities. The community centre will
include a restaurant, café lounge, hair salon, arts and craft room, library, recreation hall, cinema, bowling
green and a fitness centre including swimming pool and gym.
Toby’s Inlet Estate will accommodate for ‘aging in place’ and will offer on-site continuum of care for our
residents and our future client base. Whilst the first stages of our village will focus on providing attractive
independent living options for active retirees, home care services will be available for residents needing
assistance to stay in they own home. The final stage of the development of Toby’s Inlet Estate will be the
development of serviced apartments and a residential aged care facility to cater for residents and seniors
living in the Dunsborough region requiring these services.
There are no current residential aged care facilities in the Dunsborough area.
2.2
Site Master Plan
This application comprises the first stage development of the site. An overall master plan has been
prepared for the site to illustrate the ultimate build-out concept, and can be viewed in Appendix C.
The proposed site master plan presents a robust design which will be able to accommodate a significant
number of senior people into the future. The site master plan proposes a range of uses associated with the
aged person’s home including separate residential residencies, community and recreational facilities, market
garden/vineyard, road network, landscaped areas and caravan parking facilities.
Provision has been made for a future residential aged care facility, however given the specialist nature of
these facilities it is expected that the operation would be built and run by another entity.
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Clearly, however, the idea to co-locate these types of residential accommodation uses within the same site
has considerable planning and social merit.
In terms of the ultimate site layout the site master plan comprises the following elements:
 Around 187 Independent Living Units (ILUs) with community and recreational facilities;
 A central community and recreational facility including restaurant, lounge, café, hairdresser, library, art
and crafts room, meeting rooms, recreation hall, cinema, club house, swimming pool, gym, spa, bowling
greens, community gardens and landscaped grounds;
 Sales office;
 Serviced apartments and residential aged care;
 Communal open space and landscaped areas;
 Caravan and trailer parking;
 All development is setback 30m to all boundaries (as required in the Agriculture zone), including
Commonage Road. Later stages will develop within this side and rear setback area (as shown);
 A 30m landscaped setback is proposed to Commonage Road, which could accommodate any future
widening;
 Consideration has been given to retain significant vegetation/trees across the site;
 A medical centre can’t be permitted in the Agriculture zone (this would require rezoning), however a more
dependent residential aged care site is proposed within the Dunsborough Lakes Estate;
 Access onto Commonage Road is limited to a single point and overall traffic generation is expected to be
moderate as such retirement villages are not high traffic generating land uses;
 The access adjacent Dunsborough Lakes Road has been offset, so as to avoid a 4-way intersection.
Further details of the site master plan are provided in the consolidated table below:
ELEMENT
Built Form
DETAIL

Total Site Area – 121,550 m²

Total Community Facilities Site Area – 9,550 m²

Total Community Facilities Floor Area – 2,084 m²

Total Community Facilities Verandah Area – 1,005 m²

Number of Storeys – 1

Aged Care and Serviced Apartment Site Area – 11,686m²
2
 A total of 31,341m (26% of the total site) been identified for communal
open space/landscaping, incorporating:
» 12,064 m² in the 30m setback to Commonage Road
Landscaping
» 12,906 m² in the perimeter landscaped strip on north, east and south
boundaries
2
» 6,400m of open space area within the community facilities area
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 453 total parking spaces incorporating:
» 47 public car parking spaces;
Car Parking
» 36 caravan / boat / trailer parking spaces;
» 370 garage spaces (2 spaces per unit)
 Water, sewerage, electricity and telecommunication services will be
supplied to the site.
Infrastructure
2.3
Stage 1 – Development Application
As shown by the Development Application Plans and Elevations at Appendix B, the Development
Application is for the first stage of this proposed Aged Persons Home (lifestyle retirement village) which will
include the following components;
 Community and recreation facilities
 36 Independent Living Units
 35 public car parking bays
 Sales office
The community and recreation facilities will also be staged in their construction (Appendix B, Plan 5), with
the recreation hall, clubhouse, cinema, swimming pool / spa / gym and bowling green developed in two substages.
The Independent Living Units will be progressively built once these sites are leased and the preferred house
design is selected, although a ‘display village’ may be built up front.
A suite of individual ILU building designs are included within this application (refer Appendix B, Plans 1215). To provide flexibility to this estate it is requested that these ILU building options are acceptable to be
selected by individual owners and built progressively. These ILUs will be the subject of separate planning /
building permit applications.
A staging plan for the estate is contained in Appendix B, Plan 4.
2.4
Landscaping and Open Space
The estate will be developed with extensive communal landscaping and a substantial 30m landscaped
setback to Commonage Road.
2
A total of 31,341m or 26% of the total site been set aside for communal open space, landscaping, site
buffers and drainage, incorporating:
 12,064 m² in the 30m setback to Commonage Road
 12,906 m² in the perimeter landscaped strip on north, east and south boundaries
2
 6,400m of open space area within the community facilities area
Private open space will be provided for in each ILU, and the extent of which will depend on the unit design.
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The majority of significant trees on the site are located within the from 30m landscaped setback (refer
Appendix B, Plan 7). Future stages will be able to retain additional trees within the master plan area and
subsequent approvals.
2.5
Drainage / Water Management
A draft Local Water Management Strategy (LWMS) and Drainage report has been prepared by Calibre
Consulting (refer Appendix D: under separate cover) for the subject land in accordance with the Better
Urban Water Management (2008) guidelines, and will be required by both the Department of Water and the
City of Busselton.
The LWMS notes the following:
 “Groundwater is close to the surface after extended rainfall in late winter. There is a small dam in the
north east corner of the site, which holds water for most of the year. There are no significant drains on the
site, however there are constructed drains just north of the site and another that runs close to the south
east corner. The site currently sheets water to both of these systems.
 The subject land is within the catchment of Toby Inlet, which flows into Geographe Bay. Loamy clays,
with some gravel is the most likely soil type underlaying most of the site. The low permeability of the soil
and high groundwater means that there is a relatively high peak pre-development surface runoff,
especially in late winter.
 The landform of the site is characterised by a gently sloping site that falls consistently to the north east,
except for the areas where clean fill has been added.
 The objective of this LWMS is to detail the best management practices approach to water management
that will be undertaken for this development. This will include managing, protecting and conserving the
total water cycle of the local environment and the greater catchment.
 The effectiveness, efficiency and benefits provided by the best management practices require a
collaborative effort between local governments, developers and relevant regulatory authorities.
 The developers are committed to the concepts and outcomes outlined within the approved LWMS. This
includes the implementation, monitoring and maintenance of the best management practices designed
specifically for this development.
 The site is capable of development subject to the LWMS being implemented.
 Site drainage can be accommodated through water tanks being provided to each ILU and storage
detention within the front and side landscaped buffers.”
2.6
Transport and Access
The overall design of the movement system has been designed around Liveable Neighbourhoods principles
and to exceed standard R Code requirements in respect to the movement network, layout and open space.
As with similar estates, the overall development will be secured via an entry gate. A visitor car park is also
located outside this secured area, to assist visitors and those visiting the sales office.
The central boulevard is separated by a central median and will provide a strong entry into the development.
Arrival to the central community facilities area is via a porte cochere.
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Internal streets are designed to have a 6m pavement. Pedestrian paths in the main community areas and
along the central boulevard will be separated from vehicular traffic however throughout the rest of the low
traffic speed estate this will be integrated.
The estate will ultimately provide for around 417 car parking spaces plus 36 caravan / boat / trailer parking
spaces. Residents are generally not expected to generate as much traffic as a standard residential
development, and ultimate trip generation is estimated to be around 2.1 vehicles per day (vpd), or 388 vpd
for residents and around 50 vpd for staff, deliveries, maintenance etc. This is largely due to the fact that
residents are able to obtain many services from within the estate.
Nevertheless more than adequate parking has been provided for residents and visitors.
The overall ultimate traffic impact on Commonage Road will be negligent and within the capacity of this road.
Traffic movements are estimated to be around 438 vpd and would be considerably less than a caravan park
of comparable size. A standard residential development of 48 dwellings would generate comparable traffic
numbers simply because traffic generation rates (9vpd/dwelling) are higher for these land uses.
Safety within the streets is also considered to be high, as low traffic generation and low traffic speeds result
in an urban environment that allows pedestrians, gofers and vehicles to occupy the same shared pavement
area.
A Transport Impact Assessment has been carried out by KCTT (refer Appendix E: under separate cover).
This TIA summarises the traffic impacts as follows:
 “The subject site will generate approximately 431 vehicles per day and 91 vehicles per hour, requiring
Transport Impact Statement in accordance with WAPC Transport Impact Assessment Guidelines. It is
expected that up to 95% of traffic will travel to / from the north on Commonage Road.
 This proposed development will not trigger the requirement for upgrade of the Commonage Road
carriageway since it is deemed that the carriageway has sufficient capacity to cater for the additional
traffic (when 3% per annum traffic growth rate is taken into account).
 The proposed master plan for Dunsborough South shows neighbourhood centre planed south from the
proposed development. Given that there is no indication of potential uses or timeframes for completion
the impact of the proposed neighbourhood centre external to the development has not been assessed.
Once more data is known, the distribution of the traffic generated by the development could be revisited.
 The subject site will require a minimum of 250 standard parking bays for residents, visitors and
employees. The development proposal outlines 370 standard parking bays for residents (as double
garages) and 35 standard parking bays for employees and visitors. The development proposal offers
sufficient parking to cater for the estimated demand.
 In addition to the standard parking bays the development proposal offers 34 caravan parking bays.
Appendix 3 of the TIA contains drawings with swept paths of the design vehicles which should help guide
the definitive layout of the caravan car park.
 Pedestrian paths are provided on the Main Boulevard. All other streets are envisaged as a shared zone.
 The development proposes one access / egress point with an option that another road is provided along
the southern boundary in the future (likely to be timed with the construction of Stage 3). This additional
road would alleviate pressure from the main access / egress point however it would not change the
distribution of traffic on Commonage Road.
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 The main access / egress point is envisaged as a full movement intersection with Commonage Road. In
order to achieve this amendments should be made to the existing chevron paint marking. The proposed
main access / egress point would have sufficient capacity to cater for the proposed development in the
event that the additional road along the southern boundary is not constructed.
 The main access / egress point would serve as an emergency and delivery access.
 In the event that additional road is not constructed and that the speed limit on Commonage Road remains
80kph, a left turn deceleration lane might be required on Commonage Road to allow safer navigation onto
Main Boulevard upon completion of Stage 3.
 Except for amendment of the existing chevron painting, no additional work is required on Commonage
Road to facilitate construction of Stage 1.
 In summary the proposed development caters for all parking requirements as stipulated in the regulatory
documents. The surrounding network has sufficient capacity to cater for the traffic generated by the
proposed development.”
2.7
Reports Required Prior to Development
Prior to the commencement of development, the following management plans are to be prepared, as
applicable, to the satisfaction of the relevant authority and provided with the application for subdivision:
Acid Sulfate Soil Investigation and Management Plan
Acid Sulfate Soil (ASS) Risk Mapping identifies the majority of the site with “moderate to low” and the northeast corner as “high to moderate risk” areas, less than 3 metres from the surface.
A detailed ASS investigation and management plan will need to be prepared prior to development.
Mosquito Management Plan
Mosquito management in the SW region is vital to quality of lifestyle, health and safety of both residents and
visitors. The local mosquito management group is a regional partnership between the State government,
local governments and the Department of Health. The mosquito management group provides an extensive
management program, of which the primary activities are as follows:
 Ongoing monitoring and assessment of tides and weather patterns
 Survey of breeding sites (larvae counts, location data, growth stage and site conditions)
 Treatment (predominately Larvicide)
 Surveillance of post treatment outcomes
 Adulticide (Mist spray for mobile adult Mosquitoes)
 Public information and education initiatives and providing advice for minimisation of nuisance and disease
risk measures.
Even though the local mosquito management group provides effective and comprehensive mitigation
activities, on site mosquito management throughout the construction phase and as part of the built form is
also required. The subject site is located within a three kilometres radius of tidal wetlands and as a result is
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subject to adult mosquito activity throughout the year, especially in times of low flow with slow moving and
shallow waters that comprise the tributaries to the Toby Inlet. A direct consequence of this activity is the
increased potential risk for humans to contract Ross River Virus and Barmah Forest Virus which can be
passed on from female mosquito bites.
Given the significant issues with mosquito management in the area, the following measures should be
undertaken as part of the proposed development:
 All vents and pipes to be screened;
 All water tanks to be screened to prevent breeding;
 Outdoor entertaining areas should be screened to avoid nuisance;
 Screened door entrances;
 Landscaping to avoid hedging, vines and creepers, and be regularly pruned to prevent favourable
breeding conditions;
 Screens fitted to windows;
 Draft and pest excluders fitted to entry doors and windows; and
 Eaves to be enclosed / screened to prevent pest infiltration.
Notifications will also be placed on all titles advising prospective purchasers of the presence of mosquitoes
and the potential public health risks that they carry.
Mosquito Management measures are to be incorporated into each stage of the planning and development
process for Lot 21, ensuring best practice management policy in order to manage the effects of the mosquito
population in the locality.
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3.0
Land Particulars
3.1
Site Details
Key details of the subject site include:
Address
Lot 21 Commonage Road, Busselton
Real property description
The subject site comprises one land parcel, being:
 Lot 21 on Diagram 51474, Volume 2638, Folio 499
Lot 21 is currently subject to a restrictive covenant.
Refer to Appendix A – Certificate of Title
Lot area
12.156 hectares
Land owner
Indian Ocean Island Estates Pty Ltd
3.2
Planning Context
The planning context of the site includes:
Local Planning Scheme:
City of Busselton Town Planning Scheme No. 21 (TPS 21)
Town Planning Zoning:
Agriculture zone and subject to Special Provision 53 (Schedule 7 of
TPS 21)
Proposed Use Class
Aged Persons Home - ‘A’ use in Agriculture zone
Relevant Plans and Policies:
City of Busselton Local Planning Strategy
1. Residential Development Policy
2. Traffic and Transport Policy
8. General Development and Process Standards Policy
3.3
Site Characteristics
Key site characteristics include:
Location:
Refer Figure 1 – Location Plan
Refer Figure 2 – Site Plan
Topography:
The site has a 3m crossfall across the south-west to north-east
corners (7m AHD to 3m AHD). The land naturally drains towards the
north-east corner into an agricultural drain and river tributary. This
connects into the Toby Inlet to the north, with ultimate outfall into
Geographe Bay.
Vegetation:
The site is parkland cleared for grazing, with stands of mature trees
scattered across the subject site (refer Figure 3 – Aerial).
Services:
The site will be provided with all essential services.
Watercourse:
No watercourses are identified on the site. An existing watercourse
extends to the east of Lot 21 along a natural drainage line.
Wetland:
Wetland mapping does not extend to the subject site however there
are no discernable wetland features present.
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Road Frontages:
The subject land has road frontage to Commonage Road for
approximately 400m. On the western side of Commonage Road are
two entrances to the Enterprise Park / Dunsborough Lakes estate.
Existing use of site:
Grazing.
Contaminated Land:
The subject site is not listed on the Contaminated Land Register.
European Heritage:
There are no sites of European heritage significance listed for the
subject site under the Commonwealth Heritage Lists, Heritage
Council of WA or City of Busselton Municipal Heritage Inventory.
Aboriginal Cultural Heritage:
A search of the Department of Indigenous Affairs heritage sites
database confirms the subject site is not listed as having Aboriginal
Heritage significance.
Easements:
No easements affect the land.
Services:
Water, sewer, electricity and telecommunication services will be
supplied to the site.
3.4
Surrounding Land Uses
Immediately surrounding land uses comprise:
North:
To the north of the site, is the Dunsborough Lakes Holiday Resort
complex (Lot 29).
Soil Aint Soils is located on the north-east corner of Lot 29.
East/South:
Land to the east and south of the site is land presently used for
grazing/agricultural purposes.
West:
To the west of the site is progressively being developed for the
Enterprise Park / Dunsborough Lakes estate.
3.5
Location
Dunsborough forms part of the City of Busselton Local Government Area and in the last 10-15 years, its role
as a medium level service centre has intensified with significant growth and development of the town,
including a district shopping centre, service industry business, district sporting grounds and a variety of
tourist/retail based developments. Dunsborough also supports an extensive amount of tourism, with the
population of the centre increasing significantly from November through to April.
Lot 21 Commonage Road is located approximately 24 kilometers west of Busselton, 2 kilometers south east
of Dunsborough townsite, and forms part of the southern growth expansion area for the Dunsborough
townsite.
3.6
Topography and Physical Characteristics
The subject site is generally flat with little variation in topography, has been extensively farmed, and most of
its native vegetation has been removed for its agricultural use. Remaining vegetation generally comprises
Marri, peppermint (Agonis flexuosa), and gum species in isolated pockets. The site is characterised by dense
grass cover due to extensive clearing and a long standing use as grazing land.
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3.7
Surrounding Land
The Dunsborough town centre is located immediately to the north of Caves Road opposite the district playing
fields.
The Dunsborough Lakes estate will provide existing and future services and recreational opportunities that
will be an attraction to future residents of Lot 21, in addition to the existing Dunsborough town centre.
Geographe Bay is located 1 kilometre to the north of Lot 21.
The land immediately to the east and south west has been used for rural purposes with lots generally
averaging around 30 hectares. Surrounding land to the south and east of the site comprises varying uses
including rural, caravan/camping, tourist accommodation facilities and an ice creamery (Simmo’s). Industrial
zoned land (Lot 6) which is yet to be developed is also located to the south west of the site, as well as a rural
residential development.
3.8
Acid Sulphate Soils
Acid Sulfate Soil (ASS) Risk Mapping identifies the majority of the site with “moderate to low” and the northeast corner as “high to moderate risk” areas, less than 3 metres from the surface.
On this basis it is recommended that ASS investigations including soil sampling and laboratory testing be
undertaken as a condition of the development around where significant ground disturbance/ excavation is
planned, this will need to be dealt with and managed prior to development commencing.
3.9
Servicing
Drainage
While the land appears flat, it has a 3 metre crossfall and an available outlet through the existing agricultural
drain in the north eastern corner. In general, drainage is currently directed by following the natural contours
of flow to the north. Refer LWMS for drainage solutions.
Sewerage
The site will be connected to reticulated sewer and connection to all future dwellings and facilities will also be
required.
Gas
There will be no reticulated gas service provided to the development, however bottled gas either to individual
IDUs or via an estate-wide bottled system is an option.
Underground Power
There is sufficient capacity within the existing overhead network for power supply to this development.
Water Reticulation
There is sufficient capacity within the existing water reticulation network to supply this development. Supply
occurs via subsurface water mains designed and constructed to Water Corporation standard.
Telecommunications
The existing telecommunications network consists of copper supply lines owned and operated by Telstra.
Future developments fall under NBNco legislation and will be designed and serviced as per its requirements.
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Figure 1 – Location Plan
Subject Site
Figure 2 – Site Plan
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Figure 3 – Aerial Photograph
Subject Site
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4.0
Proposal within District and Local Context
4.1
Population Demand for Aged Persons Accommodation
The City of Busselton and Shire of Augusta–Margaret River (referred to as the Capes Region) covers an
area of approximately 3,800 square kilometres, includes some twenty townsites and has a residing
population in excess of 40,000 people. An important component of forward planning is to have an
understanding of the long term outlook for both population and economic growth for the region.
The South West has undergone a rapid and sustained change to both its population makeup and economy
in recent decades. The region has experienced strong population growth with the estimated resident
population reaching 165,985 in 2011 (ABS, 2012); and is predicted to grow to nearly 230,000 people by
2026 (WAPC, Western Australia Tomorrow 2012). Much of this growth is the result of migration to the region,
particularly by retirees.
Current migration trends in the South West are causing an increase in people in upper age groups resulting
in a rapidly ageing population. For example, the ‘over 65’ age group has grown 22.4 per cent between 2006
and 2011. This is well above the national and State figures of 13.9 and 16.7 per cent respectively and has
significant implications for land use planning and infrastructure and service provision. In particular, the
provision of aged accommodation has been raised as a key infrastructure requirement across the region.
Over the last twenty years population growth for the Capes Region has averaged 5.1% annually (compared
to the WA state average of 1.8% per annum).
The South West Regional Planning and Infrastructure Framework (WAPC 2014) identified the following key
land use planning priorities for the WAPC (refer section 6.1 of the Framework):
 support the provision of appropriate land to accommodate population and employment opportunities; and
 assist where required in the provision of land for aged accommodation.
This proposal will go a long way to meet the anticipated future aged persons accommodation needs in
Dunsborough.
Western Australia Tomorrow (WAPC, 2012) summarises population projections of local government areas by
age, sex and group up to 2026. These forecasts have been based on the ABS’s anticipated changes to
natural increase, immigration and inter/intra state migration. In summary the document suggests there are
three key factors that influence the rate of growth, these being distance from coast, distance from
established urban centre and proportion of population that is Indigenous.
The Capes Region to be an area of typical growth with the nearby Shire of Capel an area of high growth.
The Capes Region is one of the fastest growing non metropolitan local government areas in the State.
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Table 1: Usual Residents - City of Busselton by Age Group
Usual
Residents by
Age Group
Male
Female
Persons
Count
%
Count
%
Count
%
0-4
842
6.7
819
6.4
1,661
6.6
5-14
2,023
16.1
1,860
14.4
3,883
15.3
15-19
857
6.8
824
6.4
1,681
6.6
20-24
599
4.8
546
4.2
1,145
4.5
25-34
1,416
11.3
1,483
11.5
2,899
11.4
35-44
1,856
14.8
1,939
15.1
3,795
15.0
45-54
1,745
13.9
1,859
14.5
3,604
14.2
55-64
1,394
11.1
1,408
10.9
2,802
11.1
65-74
968
7.7
1,060
8.2
2,028
8.0
75-84
644
5.1
756
5.8
1,400
5.5
85+
157
1.3
300
2.3
457
1.8
Total
12,501
100
12,854
100
25,355
100
Of note is that for the 25 – 34 year old age group there is a significantly higher proportion in Dunsborough
that in any other region in the City for males and females. This may be accounted for by factors such as the
area being popular as a ‘sea change’, lifestyle and general migration. The figure shows lesser numbers for
the 15 – 24 year old age group which can possibly be accounted for by young people leaving the area at the
end of schooling to pursue education, training or other employment opportunities within the State.
Overall migration into the Augusta-Margaret River/Busselton sub-region peaks in the 55-64 years age group,
with many residents of Perth migrating into the sub-region. This trend increases as people age (33.1 per cent
of migrants aged 45-54 years are from Perth, 44.4 per cent 55-64 years, 54.8 per cent 65-74 years, and 52.1
per cent aged 75 years and over). This sub-region has shown the strongest growth over the 30 year period,
with growth rates increasing especially during the 1990s. The growth rate dropped significantly since the
2001-06 period, however this has now stabilised.
4.1.1
Population Change and Future Growth
A factor in any population projections is to establish the resident population. The Australian Bureau of
Statistics census is the key official estimate of Australian resident population for which projections maybe
based. However, a study completed by ACIL Tasman suggests that this fails to take into account the total
service population that can occur in a particular area. Many parts of Australia experience large variations of
population over the course of the year that results in a temporary increase in the population over and above
the more permanent resident population.
The type of people that may cause this ‘swing’ or ‘increase’ in population can be tourists, fly in fly out
workers, seasonal workers, students returning from boarding schools or even those who to choose to live in
the area for a part of the year whilst living and working elsewhere for the remainder of the year. There is little
reliable data on the actual peak visitor numbers. However, a survey completed by CSIRO in 2005 for the
Shire of Augusta-Margaret River identified that 40% of properties within this Shire were owned by people
who normally lived outside the region. Almost all these people lived within Western Australia (90%) and
almost all non permanent residents were older than the resident population and earned higher incomes.
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With this aside a review of documents prepared by both the City of Busselton and Shire of Augusta-Margaret
River suggest that there is a potential change in the projected population for this region insofar as an
increase in ‘permanency’ is forecast. This projected increased permanent population does have implications
for increased demand for services or community facilities such as schools and hospitals for the area. The
provision of extensive community facilities in his development will assist local government in meeting most of
this new estate resident demands.
In summary, a number of studies have identified a projected high population growth for this region.
Furthermore, reports indicate that the estimated ‘permanent’ population is projected to grow significantly over
the next 20 years.
The City of Busselton draft Local Planning Strategy (refer section 5.2 of this report) seeks to meet these
future population demands in identifying strategic areas for growth, including a corridor to the south of
Dunsborough.
4.2
Dunsborough South Structure Plan
Whilst the draft Local Planning Strategy is being finalised the City of Busselton have not prioritised any
district structure planning in Dunsborough. The Local Planning Strategy plan illustrates that a number of
broad issues need to be resolved.
RPS has prepared an indicative Dunsborough south structure plan taking into account both existing and
future land uses (refer Figure 4). This structure plan is not intended to be adopted formally by the City of
Busselton as it has been produced in response to concerns raised in previous meetings with the City that
approval of this proposal may impede future development given the current lack of strategic planning
direction. The specific concerns raised in previous discussions were;
1. the need to finalise the alignment of the Vasse-Dunsborough Link;
2. determining the strategic road framework, road linkages east to Caves Road, and ultimate width of major
roads, such as Commonage Road;
3. the location of new employment and retail shopping areas;
4. locating a high school;
5. locating district open space;
6. resolving land fragmentation, and a strategy for coordinating land owners; and
7. general land use distribution.
The Dunsborough south structure plan provides a general overview of the potential land use scenario for the
medium/long term. The aim of the structure plan was to demonstrate that the development of this site as a
retirement village is appropriate and will not prejudice the orderly and proper planning of southerly expansion
of Dunsborough. The Dunsborough south structure plan incorporates the following features:
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1. Mapping waterway / Open space corridor - The mapped waterway / open space corridor running along
the rear of the site acts as a natural barrier to development and a logical “precinct” boundary. In this
precinct we should encourage complimentary land uses to the retirement village, such as tourism similar
to that existing. This area is shown on the structure plan as pink and the industrial precinct shown as
purple. The drainage channel is shown as green (with blue arrow indicating flow direction) and creates a
logical divide to the balance of the southern expansion area.
2. Neighbourhood Centre – The location of the neighbourhood centre to the south, opposite Dunsborough
Lakes Drive will ultimately take residential, school and retirement living traffic as well as the nearby
industrial precinct is preferential. A typical 1km catchment for this neighbourhood centre makes it
appropriate to be located further back from the coast, which will be captured by the neighbourhood
centre proposed to the north within the Dunsborough Lakes Estate. This location also allows good
pedestrian access to the surrounding open space network.
3. Urban vs. Rural Residential – We have used the 1km walkable catchment of the neighbourhood centre
to split the urban and rural residential densities throughout the structure plan area. This is seen as a
logical distinction between preferred densities; however there is also potential to locate the urban
residential zoning along the open space corridors.
4. Park catchments – The structure plan has applied the standard 400m walkable catchments and located
possible locations for these areas of active open space. Indicative locations of public open space and
associated catchments aids to show that remaining structure planned area can occur at a later date and
separate to the retirement / tourism precinct.
5. Sewer Treatment – This is located well to the east of the structure plan area and does not affect the site.
6. Secondary vs. Primary School – A Primary School is to be constructed within Lot 9033 Dunsborough
Lakes Drive, which is still subject to a DGP review process, however the general location is unlikely to
change. A secondary school has been provided for within the southern growth corridor and a notation
regional open space that could be separate or integrated with the school. This can revert to residential if
not required, however it is deemed a necessary consideration at this stage.
7. Retirement/ Tourism Precinct – Along Commonage Road there is a clear opportunity to consolidate
retirement and tourism land uses between the Swancare site in Dunsborough Lakes and the
Dunsborough Lakes Holiday Resort. These uses are well located and proximate to the Dunsborough
town centre, public transport routes, key tourist and community facilities and the proposed local centre to
the immediate south of Lot 21. Existing natural drainage features to the east of Lot 21 act to enclose and
consolidate this precinct.
Careful consideration has been given to the future role of Commonage Road and its current significance as a
tourist route. Planning for the future Dunsborough Lakes estate has sought to preserve the environmental
and aesthetic qualities of Commonage Road and for this reason the proposed development with extensive
landscaping to the road will continue to preserve it as an important tourist route.
The proposed 30m landscaped setback to Commonage Road would accommodate any future widening
(however unlikely) to Commonage Road.
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4.2.1
Structure Plan Yields
The draft Dunsborough south structure plan has been allocated as per the following land use table.
Land Use
Area (Ha)
%
Residential - Urban
128.73
33%
Residential - Long Term Urban
63.21
16%
Retirement / Tourist Precinct
34.96
9%
7.4
2%
Employment Precinct
Education Precinct
15.47
4%
Neighbourhood Centre
2.5
1%
Regional Open space
10.2
3%
Passive Open Space / Drainage
89.51
23%
Active Open Space
7.88
2%
Collector Road
31.53
8%
Total Structure Plan Area
391.39
100%
The draft Dunsborough south structure plan has the potential for over 77hectares of net developable land
and could yield around 1716 new dwellings. In addition 7.4 hectares of employment land has been provided
along the Vasse-Dunsborough Link, where it will have good exposure and access advantages. The size of
this allocation could easily be expanded.
Yield Estimated
Residential - Urban
128.73 ha
Local Park (30%)
12.87 ha
Local Road (10%)
38.62 ha
Net Developable Area
77.24 ha
Estimated Residential - Urban Yield
At R20 - avg 450m²
1716
The assumptions with the yields are 30% local road and 10% public open space. We haven’t included a
drainage component (typically 2-5%) or possible buffers associated with the bypass / surrounding land uses.
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Other Residential Developments in Dunsborough
Other residential states in the Dunsborough area include:
 Dunsborough Lakes Estate - The portions offered for sale in the Dunsborough Lakes Estate form the
bulk of future residential development for the foreseeable future for Dunsborough. Overall the estimated
approximate residential lot yields across Dunsborough Lakes is around 1400 lots (accommodating around
3300 people).
2
2
 Cape Rise Estate - The Cape Rise Estate provides for about 120 lots (800m to 1000m )
 Naturaliste Heights – The Naturaliste Heights provides for about 90 lots including three R30 density
sites
 Lot 9040 (former Dunsborough Lakes School Site) - to be developed for 60 residential lots.
4.3.1
Strategic Summary
The City of Busselton generally and Dunsborough specifically will continue to expand to meet the demand for
growth within this region. Population projections have also identified the need to accommodate the aging
population, and the WAPC has identified this as a key infrastructure priority moving forward.
The draft Dunsborough south structure plan provides an indicative layout for the southern expansion of
Dunsborough. The structure plan provides guidance for future development based on existing development
and future development, as well as the alignment of the Vasse-Dunsborough Link.
The site abuts the Dunsborough Lakes Estate and Enterprise Park to the west and the Dunsborough Lakes
Holiday Resort to the north. Existing land and environmental features further enclose this site to form a
sound and logical short term urban extension to Dunsborough Lakes. This is not unlike the current
expectations that the site can be developed for higher density tourism uses (Caravan Park) with a
component of permanent accommodation.
The structure plan demonstrates that the provision of a retirement village complex over the subject site is
appropriate within the context of existing/future development, and represents a proper and orderly approach
to land use planning in the context of potential land uses into the future.
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5.0
Assessment Framework
5.1
Statutory Planning and Zoning
5.1.1
City of Busselton Town Planning Scheme No. 21
The subject land is zoned ‘Agriculture’ under the City of Busselton Town Planning Scheme No. 21 (TPS 21)
(refer Figure 5). In addition, the subject site is also designated Special Provision ‘SP53’, and is listed in
Schedule 7 of TPS 21 which can be seen below.
No.
Particulars of Land
Zone
Special Provisions
SP 53
Lot 21 Commonage
Road, Dunsborough
Agriculture
1. The Council may approve the use of up to, but no more
than, 15% of any future caravan sites developed on-site
with no restriction on length of stay. The remainder of
the caravan sites shall be for short-stay use only and
subject of length of stay restrictions limiting occupancy
to no more than 3 months in any 12 month period.
2. The units provided for use on an ‘unrestricted length of
stay’ basis shall be proportionate to the total number of
short-stay caravan sites developed at any given time.
3. Sites to be utilised on an ‘unrestricted length of stay’
basis are to be clearly identified at planning approval
stage, and shall be consolidated into one or more
portions of the site so as to effectively manage any
potential conflict between short-stay and unrestricted
stay occupant.
Section 4.2.6 of TPS 21, outlines the purpose and intent of the Agriculture zone and the minimum
development standards.
The Objects of the Agriculture zone as sett out in Table 1 are:
Objectives of the Zone
(a)
To conserve the productive potential of rural land.
(b)
To provide for new forms of agricultural development (particularly agroforestry), and changing
patterns of existing agricultural development.
(c)
To regulate the subdivision of agricultural lands within this zone to ensure that land is not
withdrawn from production or that the potential for land to be productive is not diminished.
(d)
To enable the development of land for other purposes where it can be demonstrated by the
applicant that suitable land or buildings for the proposed purposes are not available elsewhere
and that such purposes will not detrimentally affect the amenity of any existing or proposed
nearby development.
(e)
To encourage low-key rural tourism associated with traditional forms of agriculture of rural retreat
as a contributor to the overall rural economy of the Shire.
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(f)
To exclude urban development. (Any such land adjacent to existing urban areas and identified as
generally suitable for urban expansion may be used for urban development after it has been
suitably rezoned).
(g)
To make provision for the subdivision of land and encourage the amalgamation of land so as to
create allotments for commercial farming.
(h)
To discourage ribbon development along Caves Road and other tourist roads and maintain the
rural ambience of transport corridors generally;
(i)
To encourage the development of cluster or communal farming.
(j)
To encourage sustainable farming practices.
(k)
To control the clearing of trees and encourage generally the retention of vegetation and
vegetation corridor concomitant with the agricultural use of the land.
Policies of the Zone
(a)
To permit land included within the zone and shown by close investigation in consultation with
Agriculture Western Australia not to be prime agricultural land to be utilised for other purposes not
incompatible with adjacent uses.
(b)
To permit rural tourist facilities where these will not conflict or detrimentally impact established
farming pursuits and/or associated with rural activities.
(c)
To apply restrictions whereby a lot proposed to be created by subdivision for an agricultural
purpose shall contain a minimum area of land that actually is useable for commercial farming.
Depending upon the circumstances, the area of a lot may be greater than the area necessary for
the farm due to remnant and riparian vegetation considered valuable for conservation; streams,
dams, wetlands and foreshores; steep terrain and rocky outcrops; setbacks to the above and any
environmental buffers within which development or agriculture is not permitted; and existing
tourist development. As a general guide, the minimum arable area for a commercial farm that will
be recommended by the local government to the Commission is 30 hectares for viticultural and
horticultural pursuits.
(d)
To otherwise, where environmental conditions allow, positively consider subdivision of rural land
into allotments comprising a minimum of 40 hectares;
(e)
To facilitate the creation of allotments for purely agricultural use and not to hinder the adjustment
of boundaries between allotments.
(f)
To implement and adhere to the adopted recommendations and outcomes of the City of
Busselton Rural Strategy, as endorsed by the WA Planning Commission.
TPS21 outlines the planning aims and intentions of the City, including the identification of land reserved for
public purposes as well as the allocation of land use zones within the City. Under TPS21 the site is located
within the Agriculture zone and development within this zone shall be generally consistent with the provisions
of TPS21.
An “Aged Persons’ Home” is defined in TPS21 as ‘a building or group of buildings used primarily as a
residence for aged persons and may include a hostel and/or nursing home.’
Under the Agriculture zone an Aged Persons Home is classified as an ‘A’ use, which is not permitted unless
the City has granted planning approval in accordance with Clause 10.4, which requires Council to advertise
an application for an ‘A’ use for a period of 21 days.
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However, given that the subject site is in close already in proximity to urban development (Dunsborough
Lakes) and the most logical direction of the expansion of future urban development in Dunsborough is to the
south and east, it is highly likely the Agricultural zoning will be reviewed in the near/medium term future.
As such the subject site could not be considered as high priority agricultural land, and in context of the future
expansion of Dunsborough, this site would be more appropriately used as an Aged Persons Home than to
maintain the land for grazing purposes.
Figure 5 – Town Planning Scheme No. 21 Zoning Plan
5.1.2
Site Density
Special Provision 53 states that the Council may approve a caravan park on the site and up to 15% of any
future caravan sites developed on-site with no restriction on length of stay (ie. permanent residential). The
unrestricted units are to be proportionate to the total number of short-stay caravan sites developed at any
given time.
By way of example RPS has selected three caravan park sites for comparison to the potential development
capacity of the subject site:
Caravan Park
Land Area
Number of
sites
Sites/hectare
Geographe Bay Holiday Park
4.16ha
143
34
Beachlands Holiday Park
1.54ha
66
43
Dunsborough Lakes Holiday Resort and Caravan Park
6.5ha
175
27
Flinders Bay Caravan Park
2.3ha
132
57
AVERAGE
Lot 21
40.25
12.156ha
490
40.25
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Given the above comparison and using the average density of around 40 unit sites per hectare this 12.156ha
site has the potential to be developed with approximately 490 caravan sites. Applying the 15% provision for
unrestricted stay units under SP53, this equates to approximately 73 permanent residential sites.
The proposed development incorporates 185 units plus the future serviced apartments. In built form and
intensity of development is at least comparable, if not less than that under a similar caravan park
development. Considering that the NLV type aged persons village accommodates mobile or park homes,
similar to that which is popular in some tourist sites in Busselton (such as the Geographe Bay Holiday Park),
the extent and intensity of development proposed is comparable if not less than that which could be
approved by the City.
The urban intensification of this land is therefore sound in land use terms, and consistent with any logical
strategic growth plans for this Dunsborough growth corridor.
5.2
City of Busselton Local Planning Strategy
At its meeting of September 25, 2014 the City of Busselton adopted a draft Local Planning Strategy (LPS) for
the entire municipality. This includes recommendations pertaining to Dunsborough.
A copy of the draft Local Planning Strategy Plan forms Figure 6. This plan shows expansion of Dunsborough
in a predominantly south and south east direction of Dunsborough Lakes. The plan represents
potential/preferred planning directions until 2050. It is likely that the Dunsborough Lakes Estate project will
be largely completed before rezoning is facilitated for any areas to the south and east. The Local Planning
Strategy (LPS) is still being assessed for endorsement by the Department of Planning for advertising
purposes, and as such is yet to be officially adopted.
Figure 6 – Local Planning Strategy
A key component of the LPS is the relocation of the Dunsborough Industrial Area which currently lies to the
south of Dunsborough Lakes, south of Commonage Road. This Industrial Area has been allocated for many
years but has never been developed, nor has a proposal been put before the City. The Local Planning
Strategy proposes this Industrial Area be relocated further to the east as part of the townsite expansion
nominated south east of the Dunsborough Lakes Estate.
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A further expansion of Dunsborough is contemplated in the LPS to the west of the Cape Rise Estate. There
is little definition of boundaries or potential yields in this regard but again given the extensive capacity still
remaining in Cape Rise, it is not envisaged that the western extension of Cape Rise will occur for many
years.
The LPS shows “medium term urban growth” south and east of Commonage Road including a future High
School and a Neighbourhood Commercial Centre. The “medium term urban growth” cell is designated with
numeral “16”. According to the LPS report this indicates that the cell will generate a potential population of
5000 people (approximately 2000 lots). Medium term is described as 15+ years. This consideration has been
reflected in the proposed Dunsborough South Structure Plan.
The LPS also shows significant expansion of the Busselton Urban Area south of the bypass in the form of
the Ambergate precinct. Extensions are also shown south of Country Road which lies between the Yalyalup
residential area (Provence and Via Vasse) and the future Ambergate Estate.
5.3
Dunsborough Lakes Development Guide Plan
Dunsborough Lakes Estate is located in the City of Busselton and forms part of the Dunsborough townsite. It
was established in the early 90’s and while it is predominantly a residential estate, it also incorporates an 18
hole golf course and identified tourist, local convenience, service industry and aged care precincts. The
estate is also nearby local facilities such as the Dunsborough playing fields and the Naturaliste Community
Centre and in close proximity to the Dunsborough town centre.
The owner and developer of the Dunsborough Lakes Estate (Wallis Property Co Pty Ltd) has progressed
development of what is essentially the principal urban growth area for Dunsborough. During this time the
owner has also undertaken significant steps in the strategic planning process to update the overall
Development Guide Plan (DGP) within the undeveloped portions (refer Figure 7).
The DGP includes extensive public open space areas, a primary school site, a variety of residential housing
densities, provision for aged care housing and future tourist development.
The estate is approximately half way through its project life.
The subject site is located to the immediate east of the Enterprise Park mixed business area on Commonage
Road. An area illustrated as DLAP2 lies to the immediate south of Enterprise Park and has been allocated as
R30 for an aged care facility. This site is approximately 6.6ha in area and is too small for a standard
retirement village with communal facilities as is proposed on Lot 21. The positive relationship of these two
sites, however, is sound from a planning perspective, and the proposed more intensive serviced apartments /
residential aged care facility would be ideally located adjacent, as this allows residents to move from
independent care to more supervised care within the same locality.
The DGP illustrates a landscape buffer 20 metres wide that follows the eastern and southern section of
Commonage Road forming the boundary of proposed Lot 9033. This buffer is intended to be landscaped and
earth mounded in order to provide a visual and noise buffer for future residents in this portion of the Estate.
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Figure 7 - Dunsborough Lakes DGP
Subject Site
5.4
Lot 10 Commonage Road
Lot 10 Commonage Road is the former Dunsborough Sewer Treatment facility owned and operated by the
Water Corporation. The facility was decommissioned many years ago with the Water Corporation
undertaking decontamination processes over the past 8 years.
Page 27
DA15/0419
It is understood that the site has been declared as being contamination free, with the Water Corporation
ultimately either offering the site for sale or undertaking a rezoning in advance of the sale of the site.
The Dunsborough Lakes Development Guide Plan under Local Planning Policy No. 8 outlines various
provisions relating to Lot 10 even though the lot is not included in the DGP. This is due to the then Director
of Planning requiring early indications to be provided to the Water Corporation as to the City of Busselton’s
expectations for the site.
The site contains an area of vegetation which the City of Busselton considers is important for retention and
will serve as a link between the two cells of public open space shown on the Dunsborough Lakes DGP. The
City of Busselton has also previously indicated an additional district level oval be established on the Water
Corporation site in conjunction with and to supplement the shared public open space facilities with the
Department of Education school site.
5.5
Developer Contribution Plan
The subject site is located within the ‘Rural Remainder’ Development Contribution Area, which mandates a
community facilities contribution of $1520. In addition the following standard contributions apply:
Current Contribution
Amount
Charge per carpark by (Cash in Lieu) – subject to Local Government Cost Index
(LGCI) Increase.
Refer Local Planning Policy Manual (Link Below)
Policy No. 8 - Provision No. 8A
$10,104.41
Road Upgrade & Construction Contributions
$1,025.41
Footpath & Dual-use Path Construction Contributions – Charge per m².
Drainage Contributions
$540.43
Determined on
application
Mosquito Control Contribution – Per lot/dwelling unit for subdivision and group
dwelling development.
Refer Local Planning Policy Manual(Link Below)
Policy No. 6 - Provision No. 6C
$37.92
Mosquito Control Contribution – Per unit for tourist development, retirement units
and one bedroom dwelling units.
Refer Local Planning Policy Manual (Link Below)
Policy No. 6 - Provision No. 6C
$18.96
5.6
Local Tourism Planning Strategy
The City of Busselton’s Local Tourism Planning Strategy (LTPS) was endorsed by the City in 2010 and has
been referred to the Western Australian Planning Commission for final endorsement. The strategy provides
long term strategic land use planning guidance for tourism development within the region.
The LTPS addresses short and long term tourist demand and identifies strategic tourism sites and precincts
which are to be retained for tourism purposes, as well as non-strategic tourism sites, which are not critical to
retain for tourism only purposes. The LTPS provides policy direction for the development and use of the
strategic sites and precincts.
Page 28
DA15/0419
Although the subject site is not identified as a tourism site or precinct, recommendation 3.13 of the LTPS
specifically states:
“Support a change to District Town Planning Scheme 20 (Clause 43(2)) to permit consideration of up
to 15% of caravan sites for permanent occupancy in caravan parks abutting or adjoining urban zones”.
The minutes of the City’s meeting of 14th December 2011, state that this recommendation was specifically
included in LTPS by Council so as to provide for this outcome. Furthermore, the minutes state that
recommendation 3.13 was created in response to an application specific to the subject site. Given the
inclusion of recommendation 3.13 in the LTPS was in direct response to the planning considerations of this
site, it then follows that the Amendment be endorsed so Council’s intentions for the site and for improved
tourism outcomes generally can be realised.
Page 29
DA15/0419
6.0
Conclusion
The proposed development application for the first stage of a ‘Aged Persons Home’ on Lot 21 Commonage
Road, Quindalup satisfies the statutory provisions of the City of Busselton TPS 21 and all relevant strategies,
policies and legislation applicable to the subject site. An indicative Dunsborough South Structure Plan has
also been prepared to demonstrate the proposal represents an appropriate land use, and will not prejudice
orderly and proper planning, nor the future expansion of Dunsborough to the south.
The provision of an ‘Aged Persons Home’ on Lot 21 is classified as an ‘A’ use in the Agriculture zone under
the City of Busselton Town Planning Scheme No. 21, and as such may be approved by Council in
accordance with clause 10.4 of the Scheme.
The special town planning provisions that apply to Lot 21 already allow the site to be developed for an
intensive caravan park, with up to 15% permanent residents. Development of an Aged Persons Home
adjacent to the Dunsborough Lakes Holiday Resort and the Dunsborough lakes estate is consistent with the
density of development that can be developed on the site.
The Council has the ability to remove the current restrictive covenant that applies to the land, restricting the
development to a caravan park.
In broad terms this proposal:
 is consistent with TPS21 in land use and development requirements;
 is consistent with existing policy;
 is consistent with the orderly and proper planning of the locality;
 can be connected to all necessary infrastructure services and is capable of aged persons development;
and
 will not prejudice the environmental values of the immediate locality.
On the basis of the above, we consider that the information provided in this report demonstrates the
appropriateness of this proposal in the context of both present and future population and development trends
within the City of Busselton and the Dunsborough locality.
We respectfully request that the proposal is looked upon favourably based upon the information provided in
this report.
Page 30
DA15/0419
Appendix B
Development Application Plans and Elevations
DA15/0419
AGED PERSONS HOME
DEVELOPMENT APPLICATION SUBMISSION
MARCH 2015
DA15/0419
DUNS
BORO
UGH
TOW
N
CENT
RE
VILLA
GE 1K
DUNS
BORO
COM
MERC
FUTU
RE U
RBAN
IAL &
LIGH
T IND
USTR
UGH
LAKE
S GO
2KM
REA
FROM
DALU
OM B
EACH
FRON
T
P LAK
E
DUN
BEAC SBOROU
G
H RE
SORT H LAKES
S INL
DUNSBOROUGH LIFESTYLE VILLAGE
LOT 21 COMMONAGE ROAD, QUINDALUP
URSE
IAL A
TOBY
’
TOBY’S INLET ESTATE PTY LTD
QUIN
LF CO
M FR
DUNS
BORO
UGH
TOW
N
ET ES
TATE
CENT
RE
AERIAL VISUALISATION
DA15/0419
SITE PLAN
TOBY'S INLET ESTATE PTY LTD
0
25
50
100
VILLAGE SITE MASTER PLAN
SITE PLAN
DRAWN: SG
SCALE 1:1000 @ A1
28 JULY 2015
DA15/0419
SITE PLAN
PROPOSED COMMUNITY FACILITIES
SCALE 1:200
DA15/0419
2
STAGE 3
STAGE 2
STAGE 3
STAGE 1
STAGE 2
STAGE 4
2
FUTURE ROAD RESERVE
SITE PLAN
STAGE 3
2
FUTURE ROAD RESERVE
0
25
50
100
VILLAGE STAGING PLAN
SITE PLAN
DRAWN: SG
SCALE 1:1000 @ A1
28 JULY 2015
DA15/0419
BUILDING STAGE 2
BUILDING STAGE 3
BUILDING STAGE 1
SITE PLAN
COMMUNITY FACILITIES STAGING PLAN
NOT TO SCALE
STAGING OF PROJECT
DA15/0419
DA15/0419
TOBY’S INLET ESTATE
PTY LTD
CONCEPT DEVELOPMENT
DA15/0419
The proposed development includes a central boulevard with adjacent
landscaped gardens and pedestrian walkways. It will be a beautiful point of
entry for visitors and an attractive outlook for laneway houses.
Pedestrian walkways and suitable places for relaxation have been incorporated
throughout the development.
Integration of green spaces and landscaped gardens throughout the development will provide pleasant
views and natural places of quietude for residents.
Verandah spaces connecting each individual building in the
village centre will provided protection from unwanted summer
solar penetration, charming walkways for residents and places for
planned or spontaneous social interation .
The community facilities provided within Toby’s Inlet Estate cater to
the needs and lifestyles of potential residents. Facilities will include
restaurant, library, craftroom, cafe lounge, hair salon, swimming
pool, gym, recreation hall, bowling green, community garden and
cinema.
The community facilites have been designed around a central courtyard that will include landscaped gardens
and outdoor pergola area. Shared verandah spaces surrounding the courtyard will provide residents easy
access to various facilities.
DA15/0419
Community Garden
Community Engagement
Swimming Pool
Swimming Pool with Sun Deck
VILLAGE FEATURES
Restaurant
PTY LTD
Bowling Green
TO BY’S INLET ESTATE
Cinema
DA15/0419
High skylight windows shaded by skillion roof eaves
from summer sun will create well lighted and warm
community spaces throughout the winter.
Solar screening devices that allow winter
solar penetration.
Community facility building design has included high
skylight windows and light skillion roofs.
Large louvred screens have been included in the
design of the restaurant that will provide occupants
visual connectivity to surrounding landscape and
protection from undesirable solar penetration.
Rammed earth will be used throughout community buildings to provide a balanced contrast with lighter glazed,
louvred and panelled elements.
TOBY’S INLET ESTATE
PTY LTD
AESTHETIC & MATERIALS
DA15/0419
Large open plan living and dining areas.
Spacious bathroom design.
HOME DESIGN
TOBY’S I NLET ESTATE
PTY LTD
High quality sustainable building design to include passive heating and cooling
techniques
Beautiful and functional design.
Living areas opening onto adjacent verandah spaces.
Modern and homely spaces.
DA15/0419
GARAGE
EAST ELEVATION
VERANDAH
SCALE 1:200
DINING / LIVING
ENSUITE
ROBE
MASTER BED
STORAGE
WEST ELEVATION
PORCHE
ENTRY
SCALE 1:200
KITCHEN
ROBE
LINEN
LAUNDRY
BATH
STUDY / CRAFT
BED 2
NORTH ELEVATION
SCALE 1:200
DRY
PHLY DESIGN | TOBY’S INLET ESTATE LOGO
PLAN
SCALE 1:100
0
1m
2m
5m
SOUTH ELEVATION
SCALE 1:200
WAGTAIL HOUSE - CONCEPT DESIGN
11 FEB 2015
DA15/0419
BATH
NORTH ELEVATION
ENSUITE
SCALE 1:200
COURTYARD
BED 2
STUDY / CRAFT
MASTER BED
ROBE
ROBE
LINEN
VERANDAH
SOUTH ELEVATION
LAUNDRY
DINING / LIVING
KITCHEN
ENTRY
GARAGE
SCALE 1:200
DRYING
EAST ELEVATION
SCALE 1:200
PLAN
SCALE 1:100
0
1m
2m
5m
WEST ELEVATION
SCALE 1:200
CORELLA HOUSE - CONCEPT DESIGN
11 FEB 2015
DA15/0419
COURTYARD
ROBE
GARAGE
BED 2
STUDY / CRAFT
VERANDAH
BATH
ENTRY
LINEN
MASTER BED
KITCHEN
ROBE
LAUNDRY
PORCHE
DINING / LIVING
ENSUITE
PLAN
SCALE 1:100
0
1m
2m
WEST ELEVATION
NORTH ELEVATION
SCALE 1:200
SCALE 1:200
EAST ELEVATION
SOUTH ELEVATION
SCALE 1:200
SCALE 1:200
KOOKABURRA HOUSE - CONCEPT DESIGN
11 FEB 2015
5m
DA15/0419
EAST ELEVATION
VERANDAH
SCALE 1:200
GARAGE
ROBE
BED 2
BATH
DINING / LIVING
WEST ELEVATION
SCALE 1:200
ENTRY
LINEN
KITCHEN
STUDY / CRAFT
LAUNDRY
PORCHE
ROBE
MASTER BED
ENSUITE
NORTH ELEVATION
SCALE 1:200
PLAN
SCALE 1:100
0
1m
2m
5m
SOUTH ELEVATION
SCALE 1:200
WATTLEBIRD HOUSE - CONCEPT DESIGN
11 FEB 2015
DA15/0419
Appendix C
Overall Master Plan
DA15/0419
SITE PLAN
0
25
50
100
VILLAGE SITE MASTER PLAN
SITE PLAN
DRAWN: SG
SCALE 1:1000 @ A1
28 JULY 2015

RPS-Report template (standard)

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