BYRON SHIRE HOUSING NEEDS REPORT€¦ · Byron Local Environmental Plan 2014; Byron Development...

134
BYRON SHIRE HOUSING NEEDS REPORT December 2015

Transcript of BYRON SHIRE HOUSING NEEDS REPORT€¦ · Byron Local Environmental Plan 2014; Byron Development...

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BYRON SHIRE HOUSING

NEEDS REPORT

December 2015

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Prepared by:

Buckley Vann Town Planning Consultants

Level 1, 356 St Pauls Terrace, Fortitude Valley QLD 4006

PO Box 205, Fortitude Valley QLD 4006

T: (07) 3852 1822

F: (07) 3852 1750

E: [email protected]

© Buckley Vann Town Planning Consultants 2015

This document remains the property of Buckley Vann Town Planning Consultants and has been prepared for the sole

use of its intended recipient. Unauthorised use of this document in any form whatsoever is prohibited.

Disclaimer:

Maps produced by Buckley Vann Town Planning Consultants are included for informational purposes only and may not

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compiled from various sources. Therefore, Buckley Vann gives no warranty in relation to the data displayed on maps

(including accuracy, reliability, completeness, currency or suitability) and accepts no liability (including without limitation,

liability in negligence) for any loss, damage or costs (including consequential damage) relating to any use of the data.

Document Management

Author/s: Liza Valks, Jessica Binch, Brenton Doyle

Reviewer/s: Liza Valks, 30 September, 9 December 2015

Date: 10 December 2015

Job Number: 15-5183

Job Name: Byron Shire Housing Needs Report

File Location: J:\15\15-5183 Byron Shire Housing Needs Report

Version History

Version Version Date Approved By Details

A 25 Aug 2015 Liza Valks Issues section - Draft

B 16 Sept 2015 Liza Valks Issues section - Final (responding to Council

comments)

C 30 Sept 2015 Liza Valks Recommendations section – Draft

D 13 Nov 2015 Liza Valks Final Draft (responding to Council comments)

E 27 Nov 2015

10 Dec 2015 Liza Valks

Final (responding to Council comments and

workshop outcomes)

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Table of Contents

1. INTRODUCTION ....................................................................................................................... 1

2. BACKGROUND INFORMATION REVIEW .............................................................................. 2

2.1 Regional and Local Regulatory Framework ........................................................................ 2

2.1.1 Constraints and Considerations .................................................................................... 2

2.1.2 Expected Location and Type of Housing ...................................................................... 3

2.1.3 Planning and Development Controls ............................................................................ 5

2.1.4 Byron Local Environmental Plan 2014 .......................................................................... 6

2.1.5 Byron Development Control Plan 2014 ........................................................................ 8

2.2 Socio-economic Characteristics .......................................................................................... 9

2.2.1 Population ................................................................................................................... 12

2.2.2 Population and Dwelling Projections........................................................................... 12

2.2.3 Age Structure .............................................................................................................. 13

2.2.4 Socio-economic Disadvantage ................................................................................... 13

2.2.5 Household Types ........................................................................................................ 14

2.3 Housing Market .................................................................................................................. 14

2.3.1 Dwelling Structure and Size ........................................................................................ 14

2.3.2 Dwelling Tenure .......................................................................................................... 16

2.3.3 Housing Market ........................................................................................................... 16

2.3.4 Affordability ................................................................................................................. 17

2.3.5 Development Trends ................................................................................................... 18

2.3.6 Tourist accommodation ............................................................................................... 19

3. CONSULTATION .................................................................................................................... 23

3.1 Summary of research findings ........................................................................................... 23

4. SUMMARY OF ISSUES .......................................................................................................... 32

4.1 Summary of Issues ............................................................................................................ 32

4.2 Implications for housing diversity ....................................................................................... 35

5. CASE STUDIES ...................................................................................................................... 37

5.1 Economic Development Queensland ................................................................................ 37

5.1.1 Purpose and Role ....................................................................................................... 37

5.1.2 Regulatory Framework ................................................................................................ 38

5.1.3 Declared Priority Development Areas and Use of Development Guidelines .............. 39

5.1.4 Priority Development Infrastructure Co-Investment Program ..................................... 41

5.1.5 Key Considerations for Byron Shire Council ............................................................... 42

5.2 Thornton, UrbanGrowth NSW ............................................................................................ 44

5.2.1 Compact Housing Concept ......................................................................................... 44

5.2.2 About Thornton ........................................................................................................... 44

5.2.3 Housing Typologies..................................................................................................... 44

5.2.4 Design Concepts ......................................................................................................... 47

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5.2.5 Key Considerations for Byron Shire Council ............................................................... 48

6. RECOMMENDATIONS ........................................................................................................... 50

REFERENCES ............................................................................................................................ 65

ATTACHMENTS ......................................................................................................................... 66

Attachment A: Literature Review Notes ................................................................................... 66

Attachment B: Consultation Records ....................................................................................... 67

Attachment C: Pilot Group Workshop Notes ........................................................................... 68

Attachment D: Dwelling Mix Projections .................................................................................. 69

List of Tables

Table 1. Population, Byron Shire, 2006-2014 ............................................................................. 12

Table 2. Population and Dwelling Projections, Byron Shire and Localities, 2011-2031 ............. 12

Table 3. Age group projections, Byron Shire, 2011-2031 ........................................................... 13

Table 4. Income, Byron Shire and Surrounding Shires, 2011 ..................................................... 14

Table 5. Household structure, Byron Shire and NSW, 2011 ....................................................... 14

Table 6. Dwelling structure, Byron Shire and Localities, 2011 .................................................... 15

Table 7. Dwelling size, Byron Shire and Localities, 2011 ........................................................... 15

Table 8. Dwelling tenure, Localities and Byron Shire, 2011 ....................................................... 16

Table 9. Median monthly mortgage repayment and weekly rent, Locality and Byron Shire, 2011

..................................................................................................................................................... 16

Table 10. Median sale price and sales, Locality and Byron Shire, July 2008 to October 2014 .. 17

Table 11. Mortgage and rental stress, Byron Shire, 2011 .......................................................... 18

Table 12. Approval data, Byron Shire, 2007-2014 ...................................................................... 19

Table 13. Area of land and expected dwelling yield for land zoned for residential purposes and

not yet developed, 2015 .............................................................................................................. 19

Table 14. Holiday letting, Localities in Byron Shire, 2015 ........................................................... 20

Table 15. Occupied and unoccupied private dwellings, Localities and Byron Shire, 2011 ......... 20

Table 16. Aged care provisions, Far North Coast aged care planning region, 2014 .................. 21

Table 17. Population projections, Older people, Byron Shire, 2011-2031 .................................. 22

Table 18. Proposed Minimum dimensions for future residential development (subdivisions) and

density targets ............................................................................................................................. 60

Table 19. Minimum Setback and Building Length Requirements ............................................... 62

List of Figures

Figure 1. Typical Lot Arrangement .............................................................................................. 40

Figure 2. Case Study of 30 Dwellings per Hectare ..................................................................... 41

Figure 3. Typical Courtyard Home .............................................................................................. 45

Figure 4. Typical Courtyard Home Floor Plans ........................................................................... 46

Figure 5. Dwelling Typologies for Thornton ................................................................................ 47

Figure 6. Density Case Study – 15 dwellings/hectare................................................................. 63

Figure 7. Density Case Study – 20 dwellings/hectare................................................................ 64

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1. INTRODUCTION

Buckley Vann Town Planning Consultants was engaged by Byron Shire Council to prepare an

urban housing study related to community needs and housing diversity.

Byron Shire Council is developing an Urban Residential Land Strategy to set a clear vision and

policy framework for the shire’s urban residential lands. In order to inform the strategy, this

housing needs report will identify housing need, supply and market issues.

The report is structured in the following way:

Chapters 2-4 summarise issues identified as part of a background literature review and

consultation with key stakeholder groups in the local area;

Chapter 5 includes a summary of learnings from two case study analyses; and

Chapter 6 provides recommendations and strategies to address the issues identified.

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2. BACKGROUND INFORMATION REVIEW

2.1 Regional and Local Regulatory Framework

A review of key literature, including regulatory documents and relevant discussion papers, was

undertaken to inform this study. The documents reviewed are listed below, with findings

summarised under key issue headings:

Affordable Housing Options Paper: Part A (2009);

Byron Shire Council Community Strategic Plan 2022 (2012);

Far North Coast Regional Strategy 2006-2031 (2006);

Bangalow Settlement Strategy 2003 (2003);

Mullumbimby Settlement Strategy 2003 (2003);

Brunswick Heads Settlement Strategy 2004 (2004);

Byron Bay and Suffolk Park Settlement Strategy 2002 (2002);

Byron Local Environmental Plan 2014;

Byron Development Control Plan 2014; and

Preliminary Urban Residential Needs Discussion Paper (2015) – prepared as an internal

staff reference document.

2.1.1 Constraints and Considerations

Common contextual factors to be considered when identifying opportunities to diversify housing

products, relate to location, existing character and amenity, and availability of services and

facilities. Further items for consideration, which may also be constraints to diversifying housing

products, have been identified below:

Valuable natural and economic features

The value of tourism to the local economy and the protection of supporting infrastructure

from inappropriate or incompatible residential development;

The importance of agriculture to the local economy and the protection of key lands;

Location and preservation of natural assets;

Avoiding natural hazard prone land or mitigating impacts;

Protection of natural resources;

Maintenance of the coastline and coastal processes;

Character, community and demographics

Housing affordability;

Achieving a sustainable population that is consistent with local values and enhances a

sense of community (and including a small footprint, defined urban boundaries and

location of residential development in close proximity to services and facilities);

Responding to changing demographics, including an ageing population and decreasing

household occupancy rates;

Reflection of the urban character of the associated settlement;

Providing a range of lifestyle opportunities.

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Infrastructure

Capacity of existing infrastructure;

Minimising over-development of subdivisions in rural areas;

Providing a framework for the planning of new infrastructure and facilities;

Ensuring a sustainable land use pattern.

2.1.2 Expected Location and Type of Housing

The Far North Coast Regional Strategy seeks to reduce the release of new land for housing in

coastal areas, by limiting future development to within the mapped growth boundaries and

encouraging the growth of non-coastal centres. This will contribute to a greater distribution of

the population across the region and protect the coastline from excessive population pressure

on infrastructure, sensitive environments and farmland. Mullumbimby and Byron Bay are

identified to support major regional centres and provide a focus for future urban development.

The majority of future housing stock will be located in urban areas (within the growth boundaries

identified for each town) with new housing supply expected to be provided in the following three

ways:

1. Existing vacant zoned land;

2. Urban consolidation;

3. Rezoning of greenfield and brownfield sites.

Overall, a range of lifestyle opportunities is desired for the Shire, through providing a variety of

lot sizes, housing density and types, to meet the requirements and needs of the range of

existing and future residents. In general, higher density living is encouraged around town

centres and major areas of employment and the densification of these urban areas needs to

ensure that product diversity is available to residents. Dwellings also need to be well located in

proximity to services (public and active transport) and facilities, and existing urban character

needs to be preserved through well designed buildings and landscaping. Consideration should

be given to essential workers and providing realistic accommodation choices in proximity to

work places.

Housing types also need to respond to changing demographics, primarily the decrease in

household size and ageing population. It is also predicted that 80% of the increase in housing

demand will be one and two person households and this might mean a greater number of

dwellings are required to accommodate the existing population, as well as provision of new

dwellings for a growing population. There is an expectation that 60% of all future dwellings in

the region will be single dwellings and 40% will be multi-unit dwellings.

Council expects that future population growth will be distributed across six key focus areas (as

well as rural areas) as follows: 13% in rural areas, 43% in Byron Bay/Suffolk Park,13% in

Mullumbimby, 12.5% in Bangalow, 12% in Ocean Shores and 6.5% in Brunswick Heads. The

settlement strategies for each of the six key focus areas were prepared over ten years ago and,

as such, some of the expectations for future residential development outlined below may no

longer be relevant. In most areas, secondary dwellings, dual occupancies and shop top housing

in business areas are supported as ways of increasing density and providing a range of housing

products.

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It is estimated that 10% of residentially zoned land in Byron Shire is undeveloped. This is

expected to yield 1,800 to 2,000 additional dwellings over the next 10-20 years.

Byron Bay

Byron Bay has the largest amount of residential zoned land, 26%, out of the six urban areas. It

also has the largest greenfield development site, West Byron, comprising some 55.3 hectares

and recently rezoned in 2014 to provide a mix of low (44 ha) and medium (11 ha) density

residential development and a small neighbourhood centre (1ha). Development of West Byron

is predicted to provide some 800 to 1,100 dwellings over a 10-20 year period and will be guided

by a site-specific DCP that encourages a greater diversity of innovative housing to suit the

projected population.

Bayshore Village, a 1.88 hectare area zoned for mixed use development also has a potential

dwelling yield of 82 dwellings.

Suffolk Park

The future development of Suffolk Park is expected to be limited to infill redevelopments and

subdivisions. At current subdivision rates, available residential zoned land in Suffolk Park

(approximately 7 hectares or 30 lots) will be consumed within a couple years.

Mullumbimby

Future population growth in Mullumbimby is expected to be met by existing zoned land and

residential infill developments, such as dual occupancies and secondary dwellings. The existing

supply of zoned residential land (approximately 25 hectares) is expected to yield approximately

400-450 dwellings, which is likely to be consumed within ten years.

Brunswick Heads

It is expected that future residential development in Brunswick Heads will occur within existing

zoned land, including the redevelopment and upgrading of existing housing stock. There is

approximately 17 hectares of residential zoned land in Bayside Brunswick which has the

capacity for approximately 165 dwelling, which is likely to be consumed within ten years.

South Golden Beach and Ocean Shores

Residential development in Golden Beach and Open Shores is expected to comprise low-

medium density, in the form of detached dwellings, with some dual occupancies and multi

dwelling housing (i.e. townhouses). Infill development is ongoing, as is the development of new

residential lots in previously zoned areas. No new release areas are predicted for this locality.

The remaining section of the Polepic subdivision is expected to yield 75 dwellings.

Bangalow

Future residential growth is expected to occur by allowing secondary dwellings and dual

occupancy developments on suitably sized allotments within the town boundary. Approximately

200 dwellings are also expected to be created from the 16ha of recently zoned residential

areas.

Council’s past planning strategies and regulatory provisions are generally based on the urban

areas remaining as a predominantly low rise, single detached dwelling urban form, with

delineated character areas. However it is expected that new housing in the existing urban

areas will be largely delivered through urban consolidation around the major town centres in the

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form of dual occupancy, secondary dwellings, multi dwellings or redevelopment of particular

areas.

2.1.3 Planning and Development Controls

Housing Strategy Considerations

The Far North Coast Regional Strategy 2006-2031 requires local councils to prepare a Local

Growth Management Strategy (LGMS), including a land release staging program. The regional

strategy seeks an appropriate mix of housing to reflect the changing needs of the population,

including the aging population. Within Byron Shire it is expected an additional dwelling target of

2,600 dwellings by 2031 needs to be met. Council is currently preparing an Urban Residential

Strategy (focus of this report) and Rural Land Use Strategy to address these requirements.

A consistent overarching theme throughout the reviewed documents was the need to transition

town centres into denser urban environments. This should be encouraged through consultation

with the community and developers. It is generally supported that future residential

development should be limited to the Town and Village Growth Boundaries (with minor

adjustments possible) and that LEPs should not zone important environmental and rural

resource land for urban purposes. Development proposals for greenfield sites west of the

Coastal Area and outside of Town and Village Growth Boundaries would be subject to satisfying

the relevant sustainability criteria.

Preferred Development Area and Form

The consensus in reviewed literature is that the majority of future residential development

should be undertaken in urban areas, on existing zoned land and redevelopment of sites. New

dwellings should be designed to maximise adaptability to meet changing demographic needs

and provide a range of housing choices to suit different needs and different incomes. This

means that traditional houses on traditionally sized blocks should be provided, along with

smaller, lower maintenance dwellings, attached dwellings (i.e. units), multi dwelling housing (i.e.

townhouses) and seniors housing.

More specifically, the literature identifies that the planning framework should ensure that

dwellings are distributed and designed in the following way:

Limiting the growth of the urban area and allowing consolidation within the urban area

boundary to strengthen the viability of the town;

Limiting building height to two storeys, as three storeys or more is seen as inconsistent

with a town feel;

Subdivision patterns should maintain the character of the area;

Heritage character and values should be preserved and complemented by new

development;

Secondary dwellings and dual occupancy development should be permitted on suitably

sized allotments to provide a variety of housing and increase density;

Facilitate the establishment of affordable housing and aged housing;

Shop top housing in the commercial centre, where in the appropriate zone and where

associated with a business, service or particular land use;

Secondary dwellings should be limited to 60m2 and should not be used for tourism;

Lower density residential development should be located on the outskirts; and

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New caravan parks and manufactured home estates, where there is any potential for

permanent accommodation to occur, should be located generally in urban areas.

2.1.4 Byron Local Environmental Plan 2014

All councils in NSW use a LEP Standard Instrument or LEP Template. When preparing new

LEPs using the ‘template’, Council has the capacity to:

Decide which zones to use and where zones should be placed in accordance with State

government guidelines.

Add local objectives which provide greater explanation and detail to the standard zone

objectives.

Add additional permitted or prohibited land uses for each zone in the land use table. For

instance, a council may decide that neighbourhood shops and child care centres should

be allowed in low density residential zones, while others may decide that they should not

be allowed.

Require additional local controls to address local planning issues and to reflect the

outcomes of local and regional strategies. These often take the form of ‘model local

provisions’ which are standard clauses prepared by the Department of Planning and

Infrastructure for use by any council that wishes to include a clause on a certain issue

e.g. flooding.

Specify what will be permitted as ‘exempt and complying development’ for development

that is not specified in the State Environmental Planning Policy (Exempt and Complying

Development Codes) 2008.

Insert local criteria or standards into some compulsory clauses.

Prepare maps that specify the lot sizes, building heights and floor space ratios (FSRs)

appropriate for their local area. This can include having different heights and FSRs in

different streets or suburbs.

Medium density zoning has only been recently introduced in the LEP 2014. Under the previous

LEP, the ability for a single residential zone to effectively regulate scale and density of

development was limited. This has resulted in residential flat buildings being located in areas

with predominantly single dwelling houses and higher density development being located in

areas that are not well serviced or located in suitable proximity to facilities.

Zoning and Permitted Land Uses

The five urban focus areas identified in 2.1.2 include a variety of zones under the Byron LEP

2014. Those of most relevance to this investigation are listed below:

R2 Low density residential;

R3 Medium density residential;

B1 Neighbourhood centre;

B2 Local centre; and

B4 Mixed use.

The following table identifies urban zones under LEP 2014 that facilitate residential

accommodation, together with the relevant zone objective and the permitted residential uses. All

other uses captured under the definition of ‘residential accommodation’ below are prohibited in

the respective zone.

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“Residential accommodation” is defined in the following way:

“residential accommodation means a building or place used predominantly as a place of residence, and includes any of the following:

(a) attached dwellings, (b) boarding houses, (c) dual occupancies, (d) dwelling houses, (e) group homes, (f) hostels, (g) multi dwelling housing, (h) residential flat buildings, (i) rural workers’ dwellings, (j) secondary dwellings, (k) semi-detached dwellings, (l) seniors housing, (m) shop top housing,

but does not include tourist and visitor accommodation or caravan parks.”

Zone Objective Residential Uses Permitted (with consent)

R2 Low Density

Residential

To provide for the housing needs

of the community within a low

density residential environment.

Attached dwellings; boarding houses; dual occupancies;

dwelling houses; groups homes; multi dwelling houses;

secondary dwelling; senior housing excluding residential

care facilities

R3 Medium

Density

Residential

To provide for the housing needs of the community within a medium density residential environment. To provide a variety of housing types within a medium density residential environment.

Attached dwellings; boarding houses; dual occupancies;

dwelling houses; groups homes; hostels; multi dwelling

houses; secondary dwelling; senior housing including

residential care facilities; shop top housing

B1

Neighbourhood

Centre

To provide a range of small-scale

retail, business and community

uses that serve the needs of

people who live or work in the

surrounding neighbourhood.

Boarding houses; hostels; shop top housing

B2 Local Centre To encourage vibrant centres by allowing residential and tourist and visitor accommodation above commercial premises.

Boarding houses; hostels; shop top housing

B4 Mixed Use To integrate suitable business,

office, residential, retail and other

development in accessible

locations so as to maximise

public transport patronage and

encourage walking and cycling.

Boarding houses; dual occupancies; dwelling houses;

group homes; multi dwelling housing; hostels; shop top

housing

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Maximum Building Height and Minimum Lot Size

The LEP includes maps that identify maximum building height and minimum lot size for areas

throughout the Shire. Maximum building height is predominantly nine metres, with some limited

areas permitted up to 11.5 metres. Overall, minimum lot size is generally 600m2 in residential

areas, with some limited lots of 200m2 and 300m

2 in town centres within business zones.

Residential Lot Size Requirements

The LEP also includes a clause 4.1E that stipulates minimum lot sizes for dual occupancies,

multi dwelling houses and residential flat buildings in particular zones. Those that are relevant to

the residential zones have been identified in the table below.

Dwelling Type Zone Minimum Lot Size

Dual occupancy (attached) R3 Medium Density Residential 800m2

Dual occupancy (detached) R2 Low Density Residential and R3 Medium Density Residential

800m2

Multi dwelling housing R2 Low Density Residential 1,000m2

Multi dwelling housing R3 Medium Density Residential 800m2

Residential flat building R3 Medium Density Residential 800m2

2.1.5 Byron Development Control Plan 2014

The Byron DCP 2014 contains various chapters and guidelines that apply to residential

development as well as particular localities within the Shire. Of most relevance is Chapter D1 -

Residential Accommodation in Urban, Village and Special Purpose Zones. Chapter D1 of the

Byron DCP 2014 applies to the following types of residential development:

Attached dwellings;

Dual occupancies;

Dwelling houses;

Expanded houses;

Multi dwelling housing;

Residential flat buildings;

Secondary dwellings;

Semi-detached dwellings;

Shop top housing; and

Studios.

This chapter provides detailed criteria regarding building height planes, boundary setbacks,

screening, character and visual impact, fences, balconies, access, car parking, landscaping,

private open space, siting, design, character, noise mitigation, access, mobility and density

control.

In relation to shop top housing, Chapter D1 states that affordable shop top housing

accommodation is to be provided close to transport, employment and services. The dwelling

component of the shop top housing must also be consistent with the character of the area and

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provide a mix of dwelling sizes for various family and household types. A maximum density of

one dwelling per 150m2 of site area must also be applied, where no floor space ratio restrictions

are applicable. A minimum of 25% of the total floor space must be set aside for

commercial/retail purposes and all of the ground floor area fronting the street must be devoted

to these purposes.

A summary of the relevant locality-based DCP chapters has been included in Attachment A.

2.2 Socio-economic Characteristics

Council drafted a Preliminary Urban Residential Needs Discussion Paper in 2015 for internal

working purposes that detailed the socio-economic characteristics of the local area mostly

through analysis of Australia Bureau of Statistics (ABS) data, as well as some analysis of the

housing market using Council building records and research for the NSW Department of

Planning by MacroPlan Australia.

The paper summarised its main findings as:

What is driving the growth?

The principal economic driver in Byron Shire contributing to the growth in population both

permanent and visiting, is tourism centred on its natural assets, high quality natural

environment and scenic amenity. An approach to housing that focuses on sustainability

and encapsulates the protection and enhancement of green assets has the capacity to

provide economic benefits in the tourism, recreational, retail sectors, construction and

wholesale sectors.

From 2011 to 2026 Byron Shire will be required to cater for some additional 7000

permanent residents with only around 400 of these in rural areas.

Tourism accommodation currently inflates the demand for accommodation by swelling

the overnight population by around 22% and draws on the availability of certain types of

housing for our permanent residents.

Who are we?

The population of the Shire is comparably mobile with some 30% of residents as at the

2011 Census not having lived in the Shire and only 52% of residents living in the same

dwellings as they were in 5 years ago.

The population of the Shire is aging with an estimated 20% to be over the age of 65 by

2026.

Lone person households are expected to increase by around 2% to 29% by 2026 with the

prospect of 41% of persons over 85 living alone.

The median weekly household income for a Byron Shire resident as at the 2011 Census

was $885 some 28.5% below the State median of $1237.

How are we residing now?

Detached housing accounts for 82% of the private occupied housing stock in the Shire.

On average 208 new dwellings are approved each year with 83% of these in the urban

areas.

The total number of urban private dwellings is approximately 13,250;

Around three quarters of occupied private dwellings are ‘large dwellings’ (three bedrooms

or more);

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Dwelling approvals for single and multi unit dwellings were fairly evenly split from 2007‐12

however since this period the number multi unit approvals in urban areas has dropped to

7% of all approvals.

Secondary dwellings in the form of garage conversions and granny flats, number in the

order of 200 across the Shire and provide a further source of additional housing however

can raise compliance issues with fire regulations, car parking and illegal holiday letting.

Of those residents purchasing their home within the Shire 11.9% are allocating in excess

of 30% of their income on their mortgage, slightly higher than the State average of 10.5%.

The level of owned outright homes or owned with a mortgage in the Shire is comparable

with the State average.

Some 19.1% of residents renting are allocating in excess of 30% of their income to rental

payments compared with the State average of 11.6. This figure varies depending on the

location, the coastal urban areas having the highest proportion.

What the challenges are?

To be sustainable and maintain liveability, the majority of new housing stock will be

provided in the urban areas, this may require changes in housing forms and density.

Land currently allocated for urban residential needs is expected to satisfy a 9 year

demand based on current development and take up patterns.

The urban areas will be required to accommodate around an additional 2170 new homes

by 2026.

Housing affordability is a key issue for all levels of Government and it would appear that

in Byron Shire this is a significant factor to its residents, particularly rental.

Renters in seeking affordable housing options are turning to makeshift living options

including garages, unauthorised rural buildings/dwellings, caravan parks; 3% of residents

as at Census 2011 lived in caravan, tent or improvised dwellings.

Housing affordability needs to particularly be addressed given the aging population often

on a fixed income, higher proportion of income being allocated to rent payments and that

essential workers (e.g. medical staff, emergency services, police and teachers) need to

be provided with realistic accommodation choices in proximity to their work place

The key aspects of housing affordability that the Council is able to influence are:

­ Development approval timeframes

­ Land availability

­ Housing form

­ Project partnerships with other tiers of government or the private sector to provide

target/specialised housing e.g. for the elderly, low income, disabled or students.

Infrastructure is a significant component of the process of providing services for our

residents and additional housing, the approaches chosen need to consider greener

sustainable solutions that limit cost and increase efficiency and effectiveness.

The key challenges identified in the paper are outlined below:

A mismatch between income and housing costs (housing affordability) ‐ Byron Shire has

been identified as being one of the least affordable regions in Australia and the

community has consistently identified access to affordable and adequate housing as a

key issue;

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A mismatch between the housing form and the household profile ‐ limited detail is

available in relation to household ‘housing preferences’ to inform future housing needs

including purchase and rental households in terms of type and price diversity;

A need to provide more smaller, modest housing products delivered at higher densities

around services and infrastructure;

Indicators such as high median house prices, high median rents and high number of

house sales pointing towards high level of house stress amongst the population;

A mismatch between current and required aged care accommodation provision;

A low provision of social housing and universally designed housing – the low provision

rate of social housing leaving many low income households in unaffordable rental in the

private market or having to source their housing outside the area;

Understanding the sea change market impacts on housing availability, affordability and

the overall economic and employment structure of the Shire;

The significant proportion of the housing stock being visitor accommodation often with

visitor behaviour and needs conflicting with the needs and expectations of permanent

residents;

Accommodating growth based on dwelling targets in a compact urban form around

specific hierarchy of centres that:

­ Limits future residential development within the Coastal Area to Town and Village

Growth Boundaries to protect fragile and vulnerable areas and ecosystems

­ Maintains amenity, character and enhance natural values

­ Provides improved accessibility and mobility

­ Reduces energy demands.

Utilises existing land resources and infrastructure; and

Facilitating affordable, flexible and universal housing for Byron Shire residents through

the planning scheme. (Byron Shire Council 2015)

The following sections include information from the Discussion Paper and additional data has

been added where appropriate.

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2.2.1 Population

Population figures for the Byron Shire Council area (the Shire) are shown in Table 1 below.

Table 1. Population, Byron Shire, 2006-2014

Year 2006 2011 2012 2013 2014p

Estimated Resident

Population

30,125 30,712 31,024 31,609 32,119

Place of Enumeration

(on Census night)

30,326 30,964

Place of Usual

Residence

28,765 29,209

Source: ABS 2015; ABS 2013.

Note: p = preliminary.

2.2.2 Population and Dwelling Projections

The population of the Shire is expected to grow from around 29,210 people in 2011, to 38,140

people in 2031. This is a compound annual growth rate of 1.34%. Within the Shire, Bangalow is

expected to grow strongly at around 3.1% per year (see Table 2).

An additional 3,935 dwellings are needed between 2011 and 2031 to meet this projected

population growth. Given a proportion of these dwelling have been approved between 2011 and

2014 (around 650 dwellings), the assumed additional dwellings required from 2015-2031 is in

the order of 3,285. Considering the higher than average proportion of private dwellings being

unoccupied in coastal urban areas (which may be related to dwellings being used for holiday

letting discussed below), a buffer of a further 7% in private dwelling stock may be assumed

which brings the total closer to 3,530 dwellings.

Table 2. Population and Dwelling Projections, Byron Shire and Localities, 2011-2031

Locality

Population Population Growth

(2011-2031) Additional Dwellings

(2011-2031) 2011 2016 2021 2026 2031 Population Rate

Byron Bay/Suffolk Park

9,167 9,994 11,174 12,167 12,984 3,817 1.76% 1,682

Brunswick Heads 1,639 1,681 1,865 2,047 2,224 585 1.54% 258

Ocean Shores 5,667 5,993 6,330 6,571 6,737 1070 0.87% 471

Mullumbimby 3,172 3,483 3,800 4,073 4,337 1165 1.58% 513

Bangalow 1,348 1,565 1,930 2,419 2,480 1,132 3.10% 499

Total Urban 20,993 22,716 25,099 27,277 28,762 7,769 1.59% 3,422

Rural North and South

8,216 8,343 8,812 9,148 9,379 1163 0.66% 512

Total Rural 8,216 8,343 8,812 9,148 9,379 1,163 0.66% 512

Total Shire 29,209 31,059 33,911 36,425 38,141 8,932 1.34% 3,935

Source: Byron Shire Council 2015.

Note: Localities based on catchments in the Byron Section 94 Contributions Plan.

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2.2.3 Age Structure

The median age of the Shire population is higher than for NSW and Australia (42 years

compared with 38 for NSW and 37 for Australia). The population is ageing, with 20% of the

population to be 65 years of age and older by 2026.

Table 3. Age group projections, Byron Shire, 2011-2031

Age 2011 2016 2021 2026 2031

0-4 1,750 1,900 1,900 1,950 2,000

5-9 1,950 2,000 2,150 2,150 2,200

10-14 1,950 2,000 2,050 2,200 2,250

15-19 1,800 1,800 1,800 1,850 2,000

20-24 1,400 1,450 1,450 1,400 1,450

25-29 1,400 1,550 1,550 1,500 1,500

30-34 1,700 1,800 1,900 1,900 1,850

35-39 2,250 2,050 2,200 2,300 2,250

40-44 2,350 2,450 2,300 2,500 2,600

45-49 2,550 2,500 2,550 2,450 2,650

50-54 2,800 2,550 2,550 2,600 2,500

55-59 2,700 2,750 2,550 2,550 2,600

60-64 2,100 2,500 2,600 2,450 2,450

65-69 1,350 1,850 2,200 2,350 2,200

70-74 850 1,200 1,600 1,900 2,050

75-79 650 750 1,000 1,350 1,650

80-84 600 550 600 800 1,100

85+ 550 650 650 700 900

Total 30,700 32,300 33,600 34,900 36,200

Source: NSW Government: Planning and Environment 2015

2.2.4 Socio-economic Disadvantage

The median weekly household income for residents as at the 2011 census was $885, well

below the state median of $1,237. The median weekly family income and individual income for

the Shire were also below the NSW average (Family Income: $1,053/week compared to

$1,477/week for NSW, Individual Income: $477/week compared to $561/week).

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Table 4. Income, Byron Shire and Surrounding Shires, 2011

Location

Median Weekly

Individual Income

Median Weekly

Family Income

Median Weekly

Household Income

Ballina $496 $1,153 $930

Tweed $442 $1,045 $845

Lismore $469 $1,123 $907

Clarence Valley $396 $924 $768

Byron Shire $477 $1,053 $885

NSW $561 $1,477 $1,237

Source: ABS 2013.

2.2.5 Household Types

Compared to New South Wales, the Shire has a high proportion of households being lone

person households (27.6% compared to 24.2% for NSW), and one parent families (14.7%

compared to 11.7% for NSW) (Table 5). Group households also make up a higher proportion of

households in the Shire compared to New South Wales. The Shire has lower proportions of

couples and couples with families compared to New South Wales.

Table 5. Household structure, Byron Shire and NSW, 2011

Location

Couple family

without children

Couple family

with children

One parent

family

Lone Person

Households

Group

Households

Byron Shire 24.5% 25.0% 14.7% 27.6% 7.5%

NSW 26.3% 32.7% 11.7% 24.2% 3.8%

Source: ABS 2013.

Note: Assuming that the secondary family in the small number of multi-family households have

the same household type as the primary family.

Lone person households are expected to increase by around 2 percentage points to 29% by

2026, and 41% of people over 85 years of age will live alone.

2.3 Housing Market

2.3.1 Dwelling Structure and Size

The Shire had a high proportion of detached houses, and a low proportion of attached dwellings

compared to New South Wales (see Table 6). The Shire also had a slightly higher proportion of

dwellings in the ‘other’ dwelling category which includes caravans, cabins, houseboats,

improvised homes, tents, and houses and flats attached to shops and offices. In Brunswick

Heads around 10% of households lived in this form of dwelling and this may be a reflection of

people living permanently in caravan parks. The higher proportion of ‘other’ dwelling types in

both Byron Bay and Suffolk Park may also be a reflection of the cost of and desire for rental

accommodation in these coastal locations.

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Table 6. Dwelling structure, Byron Shire and Localities, 2011

Location Separate House

Semi-detached,

row house, etc

Flat, unit,

apartment Other

Ocean Chores/New

Brighton

85.9% 5.9% 7.4% 0.8%

Bangalow 94.3% 1.4% 4.3% 0.0%

Brunswick Heads 55.0% 10.7% 24.7% 9.6%

Byron Bay 60.3% 26.8% 6.7% 5.6%

South Golden Beach 90.5% 3.6% 5.8% 0.0%

Suffolk Park 71.3% 18.9% 4.0% 5.8%

Mullumbimby 90.6% 3.7% 4.7% 0.9%

Byron Shire 9,194 1,023 603 351

82.1% 9.1% 5.4% 3.1%

NSW 69.5% 10.7% 18.8% 0.9%

Source: Byron Shire Council 2015.

Around 46% of occupied dwellings were 3 bedroom dwellings in the Shire at 2011. This was a

higher proportion than for New South Wales as a whole. South Golden Beach, Bangalow, and

Suffolk Park had low proportions of small dwellings (0-2 bedrooms), and high proportions of

larger dwellings (3+ bedrooms) (see Table 7).

Table 7. Dwelling size, Byron Shire and Localities, 2011

Location 0-1 2 3 4+

Ocean Shores/New

Brighton

5.8% 15.4% 55.1% 23.1%

Bangalow 3.5% 13.2% 50.5% 31.1%

Brunswick Heads 14.1% 26.6% 34.2% 16.4%

Byron Bay 10.0% 21.5% 44.9% 20.2%

South Golden Beach 1.4% 13.8% 54.3% 28.8%

Suffolk Park 6.0% 12.8% 51.7% 27.3%

Mullumbimby 4.1% 19.0% 50.7% 24.0%

Byron Shire 908 1,963 5,194 2,857

8.2% 17.5% 46.4% 25.5%

NSW 6.3% 22.5% 39.9% 29.4%

Source: ABS 2013.

As at the 2011 census, 69% of lone person households were accommodated in separate

houses, 23% in semi-detached and attached dwellings, and 7% in ‘other’ dwelling types

including caravans, cabins, improvised housing and accommodation attached to shop or office.

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2.3.2 Dwelling Tenure

Of the dwellings occupied on census night in 2011, around 32% were being rented in the Shire,

43% were being rented in Brunswick Heads and 41% in Byron Bay.

Table 8. Dwelling tenure, Localities and Byron Shire, 2011

Location Fully Owned Mortgaged Rented

Ocean Shores/New

Brighton

34.5% 33.8% 29.5%

Bangalow 25.4% 41.1% 30.0%

Brunswick Heads 33.5% 13.6% 42.9%

Byron Bay 32.3% 21.4% 41.4%

South Golden Beach 27.6% 36.2% 33.3%

Suffolk Park 28.1% 32.7% 35.7%

Mullumbimby 37.3% 29.0% 29.2%

Byron Shire 35.0% 28.8% 32.3%

NSW 33.2% 33.4% 30.1%

Source: Byron Shire Council 2015.

Note: The percentages above for each urban area will not equal 100% as ‘other’ tenure types

and tenure types not stated have not been included in this table.

2.3.3 Housing Market

The median weekly rent in the Shire was higher than for other nearby areas, and for New South

Wales as a whole (Table 9). Median rents were highest in Bangalow and Suffolk Park. The

median monthly mortgage repayment was lower in the Shire compared to New South Wales as

a whole. Mortgage repayments in the Shire were highest in Brunswick Heads and Suffolk Park.

Table 9. Median monthly mortgage repayment and weekly rent, Locality and Byron Shire,

2011

Location

Median Monthly

Mortgage

Repayment

Median Weekly

Rent

Ocean Chores/New

Brighton

$1,613 $330

Bangalow $1,517 $440

Brunswick Heads $2,000 $270

Byron Bay $1,733 $380

South Golden Beach $1,733 $380

Suffolk Park $1,950 $420

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Mullumbimby $1,650 $320

Byron Shire $1,684 $350

Ballina $1,733 $290

Tweed $1,733 $295

Lismore $1,495 $224

Clarence Valley $1,300 $210

NSW $1,933 $300

Source: Byron Shire Council 2015.

According to recent property transfer data from Byron Shire Council, the median sale price of

dwellings in the Shire between July 2008 and October 2014 was $530,000. Median sale prices

were higher in New Brighton, Byron Bay, Brunswick Heads, Suffolk Park and Bangalow (Table

10).

Table 10. Median sale price and sales, Locality and Byron Shire, July 2008 to October

2014

Location Median Sale Price Number of Sales

Bangalow $535,000 379

Brunswick Heads $575,000 285

Byron Bay $595,000 1,517

Mullumbimby $459,000 631

New Brighton $650,000 63

Ocean Shores $405,000 824

South Golden Beach $430,000 147

Suffolk Park $567,000 644

All urban areas $510,000 4,491

Byron Shire $530,000 5,693

Source: Byron Shire Council 2015.

2.3.4 Affordability

Census data suggests that at 2011, there were 674 households experiencing mortgage stress

in the Shire, and 1,560 households experiencing rental stress. Housing stress, both mortgage

and rental stress, is when a low income household (in bottom 40% of income distribution)

spends more than 30% of their household income on accommodation costs. Both mortgage and

rental stress is high in the Shire compared to NSW (see Table 11).

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Table 11. Mortgage and rental stress, Byron Shire, 2011

Location Mortgage Stress Rental Stress

Byron Shire 674 20.6% 1,560 41.3%

NSW 92,054 11.1% 199,398 26.3%

Source: PHIDU 2015.

In 2008, Judith Stubbs and Associates found that:

Purchase of a first quartile dwelling (those at lowest 25% price range) would result in

housing stress for around 80% of all households in Byron;

Similarly, rental of a first quartile one bedroom flat or unit would result in housing stress to

the bottom 15% of households when housing stress is defined as spending more than

30% of household income on housing.

For a median two bedroom house, rental would be generally unaffordable to around two

thirds of households in Byron, and would place all households in low to moderate

incomes in housing stress.

Those most likely to be affected are older asset-poor renters, young people in the

process of household formation, low to moderate income workers; sole parent families;

people on fixed incomes including residents with a disability and those with special

needs; and people whose life circumstances change quickly including facing divorce or

unemployment.

At 30 June 2014, expected wait times for social housing were 10 years for all dwelling types in

the Shire, except for dwellings with 4 or more bedrooms in Brunswick Heads and Mullumbimby

which had a wait time of between 2 and 5 years (NSW Government: Family and Community

Services 2014).

In 2008, around 1.8% of occupied dwellings were public housing in the Shire compared to

around 5% for New South Wales and there is significant competition for public housing

particularly among lone person households and older single people and couples (Judith Stubbs

and Associates 2008).

2.3.5 Development Trends

A total of 1,461 new dwellings where approved from 2007-2014 (see Table 12). On average a

total of 208 dwellings were approved each year, with dwelling approvals in rural areas averaged

at 34 approvals per year.

The Preliminary Urban Residential Needs Discussion Paper noted that:

A secondary dwelling is smaller than 60sqm and not able to be used for tourism purposes.

The capacity to develop a secondary dwelling was introduced as part of the Affordable

Housing SEPP 2009 provisions. This provision was expected to deliver small, relatively

affordable housing and older residents are among the primary targets for this initiative. The

demand for secondary dwelling did not ‘take off’ however until Council resolved to make

them exempt from infrastructure contributions in 2011.

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In the three years between mid-2011 and mid-2014, 183 secondary dwellings were approved in

the urban areas of the Shire. In 2012/13 and 2013/14, the number of secondary dwellings

approved was well above the number of multi-unit dwellings.

Table 12. Approval data, Byron Shire, 2007-2014

Year Urban Rural Total

Detached Multi-

unit

Secon-

dary1

Total Detached Second-

ary1

Total Byron

Shire

2007-

2012

330 418 73 821 158 9 167 988

2012/13 201 8 65 274 50 6 56 330

2013/14 250 11 45 306 35 8 43 349

Total 781 437 183 1,401 243 23 267 1,668

Source: Byron Shire Council 2015.

Note 1: Secondary dwelling data only collected since 2011. Development approvals for

secondary dwellings before 2011 not included in this data.

There is currently 127 hectares of land which is zoned for residential purposes and not yet

developed. This land might yield between 1,800-2,100 dwellings.

Table 13. Area of land and expected dwelling yield for land zoned for residential

purposes and not yet developed, 2015

Location Area of land predicted to be

developed (ha)

Approximate range of dwelling

yield

Bayshore Village – Byron Bay 2 82

West Byron Bay 55 850-1,100

Bayside Brunswick – Brunswick

Heads

17 167

Tallowood Ridge – Mullumbimby 20 390-400

Bangalow – New Release Areas 16 195-200

North Ocean Shores – Off Shara

Boulevard

5.5 75

Suffolk Park West 7 33

Mullumbimby – undeveloped land 4.5 43

Total 127 1,835-2,100

Source: Byron Shire Council 2015.

2.3.6 Tourist accommodation

The principal economic driver in the Byron Shire is tourism with employment arising from

tourism expenditure estimated to be around 2,500 full-time equivalent jobs.

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With demand for tourist accommodation, some dwellings in the Shire are used as holiday lets (a

dwelling house which is let for a short term period for holiday purposes). It was estimated in

early 2015 that whilst an exact number is unknown somewhere between 600 ‐ 900 holiday lets

occur in the urban areas of the Shire as shown in Table 14.

Table 14. Holiday letting, Localities in Byron Shire, 2015

Location Estimate number of

holiday lets

Ocean Shores/New Brighton/South

Golden Beach

49

Bangalow 53

Brunswick Heads 37

Byron Bay 602

Belongil 39

Suffolk Park 76

Tallows Beach 26

Mullumbimby 11

Ewingsdale 19

Hinterland 140

Total 1,003

Source: Byron Shire Council 2015.

On Census night 2011, 2,052 private dwellings were unoccupied, or 15.5% of the total private

dwellings counted. This was a high proportion compared to NSW at 9.7% and compared to

Lismore and Ballina Shires (Table 15). There was a large proportion of unoccupied dwellings in

Byron Bay (at 26.6%), and lower proportions at Bangalow and Mullumbimby.

If it was assumed that a ‘normal’ level of dwellings to be unoccupied on Census night was 10%,

the higher than average rates in Byron Shire would equate to around 730 dwellings being used

for tourist accommodation.

Table 15. Occupied and unoccupied private dwellings, Localities and Byron Shire, 2011

Location Private Dwellings ‐ Occupied Private Dwellings ‐ Unoccupied

Ocean Shores/New

Brighton

1,781 85.8% 295 14.2%

Bangalow 561 92.3% 47 7.7%

Brunswick Heads 652 83.5% 129 16.5%

Byron Bay 1,961 73.4% 710 26.6%

South Golden Beach 718 84.7% 130 15.3%

Suffolk Park 1,249 85.4% 213 14.6%

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Mullumbimby 1,231 92.6% 98 7.4%

Byron Shire 11,198 84.5% 2,052 15.5%

Lismore City NA 91.6% NA 8.4%

Ballina Shire NA 90.4% NA 9.6%

NSW NA 90.3% NA 9.7%

Source: Byron Shire Council 2015.

2.3.8 Aged Care Accommodation

The national target for the provision of aged care services from the Department of Social

Services (now responsible for aged care and ageing) is 125 places per 1,000 population over

70 years of age by 2021-22 comprising a ratio of:

80 places in a residential setting; and

45 places in home care (Department of Social Services 2014a).

In the Far North Coast aged care planning region, which includes Byron Shire as well as

Tweed, Lismore, Ballina, Richmond Valley, Kyogle and Clarence Valley, the current ratio of

allocated residential aged care places to the older population is higher than the target, however

the ratio for home care places is well below the target (28 places/1,000 people 75 years of age

and older, compared to the target of 45 places). Ratios for operational places are lower.

Table 16. Aged care provisions, Far North Coast aged care planning region, 2014

Measure Residential Home Care Total

Low Care High Care Total Low Care High Care Total Total

Allocated Places 1,939 1,978 3,917 953 239 1,192 5,109

Allocated Places

Ratio 45.7 46.6 92.3 22.5 5.6 28.1 120.4

Operational

Places 1,854 1,878 3,732 953 239 1,192 4,924

Operational

Places Ratio 43.7 44.3 88.0 22.5 5.6 28.1 116.1

Source: Department of Social Services 2014b.

Note: Ratio is allocated places to 1,000 population 75 years of age and older.

Note: Allocated places have been allocated under the Department of Social Services approval

processes but are not necessarily all operational

Note: The Far North Coast aged care planning region includes Byron, Tweed, Lismore, Ballina,

Richmond Valley, Kyogle and Clarence Valley LGAs.

Between 2011 and 2031, the population 75 years of age and older is projected to double in the

Byron Shire, from around 1,800 people at 2011, to around 3,650 people at 2031 (Table 17).

This will result in a doubling of the demand for residential aged care and home care places to

keep up with population growth.

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Table 17. Population projections, Older people, Byron Shire, 2011-2031

Age 2011 2016 2021 2026 2031

75+ 1,800 1,950 2,250 2,850 3,650

Source: NSW Government: Planning and Environment 2015

In 2008, it was estimated that an additional 203 high care places and 176 low care places in

residential aged care, as well as 460 independent living units were needed in the Byron Shire

by 2031 (Judith Stubbs and Associates 2008).

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3. CONSULTATION

As well as a review of existing literature, consultation was undertaken with a targeted group of

stakeholders including real estate agents, developers, town planners working with local

developers, researchers, social housing providers, and providers of accommodation for older

people. These contacts were identified by Byron Shire Council. After an initial contact email

from Council, the consultant arranged phone interviews with each contact. Questions for phone

interviews were tailored for each stakeholder group, however interviewers had some flexibility in

asking questions and probing for information. Interviews lasted around 15-30 minutes.

Interview questions and transcripts are provided as Attachment B.

As part of Phase 2 of the project, a separate Pilot Group workshop consisting of Council

development assessment and planning staff, local planning consultants and developers was

convened to test the draft recommendations. The feedback from this workshop has been used

to inform the final report – in particular responses to floor space ratios and building heights.

A copy of the summary findings from this workshop is included at Attachment C.

3.1 Summary of research findings

A summary of consultation findings is included in the table below. In interpreting and using the

following consultation summary it is important to note that it represents a compilation of opinions

and views as expressed by the stakeholders interviewed.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

Supply – new lots,

layout, size and price

Stage 3 and 4 selling from a

rezoning that occurred in early

2000s.

Most lots are 600sqm.

600-800sqm lots do sell.

There is a demand for 800sqm

but the price difference between

600 and 800sqm lots does not

support viability for developers.

Bangalow is land locked by

natural constraints.

Suggest rezone land away from

highway – western side of town –

as housing near highway has

added cost with noise attenuation

measures. Similarly, sloping,

rocky land is expensive to build

on and contributes to affordability

issues.

There is current demand for 600-

650sqm lots.

West Byron still in development

stage. What happens with the

first release of West Byron will

affect perceptions and

subsequent releases.

West Byron proposes a diversity

in lot sizes to encourage a range

of building styles – lot size is

being used to influence the

housing product and diversity,

with some lots 200sqm in

medium density areas.

Consideration should be given to

develop areas outside Byron Bay

and making alternatives for

residents such that they do not

need to come into Byron Bay for

daily services.

Additional land for residential

development is needed.

There is a land release in town –

Tallowood Ridge – but too

expensive. Sites for $298-

312,000 on website.

Supply of land and infrastructure

charges are big issues. Need to

change to keep costs down.

Affordability is an issue – 2

bedroom, 1 bathroom, 50s shack,

selling for $450,000, asbestos

nightmare. Anything under

$450,000 sells well.

More land needs to be made

available – mostly in towns and

hinterland, rather than coastal

towns.

Location is a key drivers for both

purchasers and renter target

groups – people will live in a sub-

standard dwelling because they

like the location.

Holiday letting is having a large

impact on costs, amenity and

availability of housing ranging

from large houses to garages.

Use of laneways allows for more

diverse housing products.

Fitzgibbon in Brisbane kept to a 2

storey height limit and yielded 58

dwellings/ha – product is selling.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

Opportunities for

more efficient use of

existing land/housing

stock

800sqm lots are available for

dual occupancy – there is a

demand as people who would

like a second cottage to rent or

family member.

500sqm lots can accommodate

secondary dwellings.

Need more land for duplex and

unit style.

Developers to ‘value add’ on

subdivisions to get mix, style of

dwelling, instead of only selling

land.

There is a stock of land

underutilised, owned and

occupied by older residents not

interested in development –

measures need to sensitively

target this potential either through

room letting, secondary dwelling

or subdivision.

Not sure if infrastructure will cope

– 60-70 yrs old – developers will

not want to pay the cost to

upgrade.

Units and townhouses suitable in

town.

Subdivision of larger lots could

assist, but infrastructure charges

make this unfeasible.

Some redevelopment is occurring

but not really viable due to land

and redevelopment costs

associated with demolition

(including asbestos) and

infrastructure upgrading.

Small lots No comments. West Byron - small lots an

avenue to improve affordability –

aiming to release a 450sqm lot

for around $290,000.

Support concept of the higher

densities near services – off set

the smaller lot if activities

available nearby such as parks

and shops.

People looking for reasonable

sized blocks.

Tallowood Estate, larger blocks

sell, smaller lots to keep costs

down don’t sell as well.

Products on 250-310 sqm lots

are popular in other areas.

Growing interest for smaller

homes compared to 5 yrs ago

(note 600sqm lot and 3 bed

home is seen as small).

Building small buildings is

relatively expensive on $ /sqm of

floor space.

Plans need to demonstrate that a

small lot, still has room for a shed

or caravan.

Streetscape is important with

small lot development.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

450sqm lots selling slowly,

400sqm can’t fit a Metricon

home.

Medium density Untested demand - for duplex

and unit style, but would appear

to exist suggested market price

of $350-$450,000 for 3 bedroom

– 2 bathroom would sell

Current medium density poorly

located. Better to locate close to

town centre.

Infill development expensive –

high cost of dwellings, remove

asbestos, redevelopment costs.

Secondary dwelling may not

have helped demand, but rather

the quality of living i.e.

residences now have a kitchen

and bathroom.

Most demand is for units with 3

bed, 2 bath, double garage.

Not advocating for rows of

townhouses, but locations where

suitable and would create more

affordable rental.

Council says no to unit and

townhouse proposals. Motel was

recently converted to small units

as easier.

Two level, walk up, 1 and 2

bedroom units, with garage and

storage are needed.

Restricted by the maximum

density allowed and lot size

provisions.

Restriction on multistorey

development is also a deterrent

to development.

Can achieve on a 250sqm lot a

3-4 bed, 2 bathroom, double

garage.

People are buying houses and

splitting them into 2 or3 flats

illegally.

Quality of building design

matters.

Design of dwellings

(houses)

Land selling only – developers

not doing house & land – one

developer has been offering

packages lately.

Sustainability not high on the

agenda due to other costs and

return at resale.

Looking for 4 bedroom, 2

bathroom, double garage.

Scope to design buildings to look

like a large house but contain

three dwellings – adaptable

housing.

Cross-section: Some people

looking for larger houses, some

looking to downsize.

Land is expensive, so end up

building cheap brick and tile

project homes, which don’t suit

climate.

Height limits need to be revisited

in relation to design outcomes.

Looking for 3-4 bedroom, study,

single story, 250sqm, 2

bathroom, double garage.

Speculative building/ display

homes are generally larger to

maximise resale value.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

Option to mix land

uses

Easy walk to centre from all

areas of Bangalow.

Live /work developments

currently in Bayshore Dr

Industrial Estate. The legal status

of these needs to be clarified.

There are opportunities for mix of

dwellings in town, for

townhouses/units.

No comments

Affordable Rental

Housing

Rents around $400-500

Lower rents - offered a garage as

one bedroom unit $300.

Affordability a key issue.

Rents are not affordable for low

income, and single parents.

Cost of rental housing in Byron

Bay pushes demand to

Bangalow.

Families seeking 3 bed+

Rents 3 bed $600+, cheapest

$450 for 1-2 bed

Double garages $350

Peak tourist season no vacancies

anywhere.

Low income workers looking for a

single room to rent.

Single parents split rental by

subletting to supplement income.

Converted motel rooms, 1

bedroom loft style, with limited

storage and carport renting for

$350.

3 bedroom, 1 bathroom, brick

and tile for $450/week.

My Place a ballot box system –

where people that met certain

criteria are eligible for selected

lots.

There is a difference between

affordable and social housing

and this needs to be clarified.

There is also a difference

between affordable houses to

purchase and rent.

Seniors Housing

Options/

Opportunities

Retirees 55 + from Sydney, Melbourne. Brisbane Gold Coast as well as locals.

Feros Villages:

- Bangalow - Feros Village: 64 higher care facility.

- Byron Bay - 40 bed mainly low care – if required to provide a 24 hr nurse would not be viable, will close – this would apply to most facilities with

less than 50 residents/beds.

- No room to expand Byron facility due to zoning.

Cape Byron estate for over 55s but not a retirement village:

- Provides duplexes for around $395,000 – mostly owner occupier, usually only changes hands when someone passes away – demand - yes there

is a waiting list of at least 5-6 people.

- Limiting to over 55s keeps a cap on prices.

- Attractive as it is a secure environment.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

- Model could be easily replicated if further out of town offer a free minibus, inclusion of a heated pool important.

West Byron looking at some to be senior designed housing – 300-350sqm lots, 2-3 bedrooms.

Some people are looking to downsize, others want extra room for family to stay.

People when older still want to be part of a community, with the ability to socially mix with all age groups.

Most over 50s are couples and are not wanting to live in conventional aged housing models.

NRAS scheme (income based and purchase price) useful but uncertain about future funding rounds.

In-home care could be improved with capacity for video conferencing to check on people. Group housing, or denser housing types, would help reduce

travel times for home care.

Appropriateness of accommodation conditions contribute to health outcomes as people age. Some older people were essentially homeless and this

contributed to the need to move to aged care before generally would be required.

Need for aged care/disability care in Mullumbimby, but hard to get through council.

Key workers Cost of accommodation for aged care workers always going to be an issue because of low pay.

Byron Bay:

- Carers (for residential care facility) have left work at Byron Bay because accommodation is expensive.

- Tourism/hospitality workers - Late 20s - Renters using single bed studio or room in house.

Bangalow:

- Finding carers (for residential care facility) less of an issue at Bangalow than at Byron Bay – has a core of long term staff, but many of these

workers do not live in Byron Shire, but this could be connected to the location of where they trained (Lismore).

Younger people There is demand from this group. Opportunities for young people limited to break in to home ownership.

Fitzgibbon (Queensland) offered a product that was $221,000 for young people close to services and in their local area.

Social Housing State government is responsible for 80%, community housing providers for 20%.

Most community housing is old State government stock.

Stigma attached to this housing due to past approaches particularly clustering.

Products include houses and units.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

In high price areas, maximise footprint with units.

One bedroom units are uneconomic, as it costs the same to build a 2 bed and house more people.

Support with concession on infrastructure, density, parking and communal space.

Do not put in expensive location where residents cannot afford the use of services or shops.

Housing Affordability

(for Purchase)

Selling for > $800,000 out of town/sea-change.

Selling for < $800,000 local purchasers.

House prices are similar to capital cities and this is not uncommon situation in ‘resort’ towns.

The anti-development position of Council for 30 years has pushed up median house prices to $950,000 in Byron Bay.

Project builders take around 30% of profit – simply designed house, targeted at $800-$900/sqm of floor area.

Trick to reduce house prices is the reduction in either land or house size, or both.

Affordability is also connected to a culture of everybody wanting everything e.g. do homes need a theatre room.

West Byron, 450sqm blocks may be affordable for single parents.

Infrastructure and

servicing

Shire’s infrastructure not coping – rate base too low in Byron Bay to pay for amenities (including for tourists).

Bangalow – development fees around $35,000- $45,000 per lot for Section 94 Contributions.

Byron - Section 94 Contributions around $42,000/lot

Section 94 Contributions are comparative with the region.

Relaxation of secondary dwelling contributions has been too generous, a cost to ratepayers, but contributed to rental housing stock.

Need to consider engineering standards, infrastructure placement, road widths etc. What is really required, rather than what is standard practice.

Section 94 Contributions are exorbitant.

Council/ Approval

Processes

Absence of housing strategies by Council has resulted in illegal housing, land supply issues and lack of diversity and innovation.

Anti-development culture of Council.

Council is inefficient and incompetent. Length of time to approve developments increases holding costs for developers, and contributes to higher prices.

Concern expressed over development approval timeframes – suggested that Ballina online 50 days, Byron Shire Council longer up to a year.

Byron Shire Council hard to deal with x >3. Some developers ‘just wouldn’t even bother with them’.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

Very green/overly green.

Can be green/sustainable and still release land for residential development.

Have previously used constraints and rural zoning to limit urban expansion.

Culture of councillors changes every 4 years, generates uncertainty as Councillors too involved in the decision making process, should be delegation to

trained officers.

Council history has led to debt, ageing infrastructure, high costs for development. How has this happened?

Council officers need to be more proactive in drawing attention to alternative innovative housing forms.

Community needs to be informed and brought on side.

Decision making process should looking at whether ‘different and better’ or ‘different and worse’ – if good, expedite.

Consider Place Making planning system.

Who are the applicants:

- Mainly mum and dad clients, a few cashed up miners who do not need financial backing, GFC took a number of developers out of the market.

- Most applications are for small scale development, typically secondary dwellings, dual occupancies and units (6 unit developments are considered

a ‘big’ application). Choice of product is influenced by what real estate agents advise – comfort in a tested product.

- Typically a standard building design, not pushing the boundaries.

Financing Financiers see Byron Shire as a high risk, due to development delays and risk of court action.

Cape Byron Estate 55s - is strata title – finance through a normal bank loan.

Community title business model affects cash flow for builders so the standard freehold works best – Body corporate fees also increase prices.

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Topic Area Bangalow Byron Bay/ Suffolk Park Mullumbimby General Feedback

Ideas More collaborative approach, Council host regular forums with developers and community, Change the culture.

Regular Council forums with stakeholders.

Developer/builders/homebuyers need to have a good relationship.

Change terminology, use phases such as diversity and innovation, rather than affordability.

Lot sizes for new developments influence the final form, so thinking about lot sizes early on is important.

Incentives to build, but sometimes the developer will keep that extra profit for themselves rather than offering final product at a discount.

Intentional neighbourhoods – group of people with a common interest buy a super lot, use one builder and share common facilities.

Scope for a ‘funky’ manufactured home park, where people own the dwelling, but lease the land with a contribution for facilities – offers an alternative for

low income people. But needs to be well integrated, well located.

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4. SUMMARY OF ISSUES

4.1 Summary of Issues

So what have we learnt from our investigations to date in relation to housing affordability and

diversity? This summary of issues has been drawn from all previous phases of the project

including the literature review and consultation investigations undertaken for the project.

1. Supply and Demand (a): Byron is a highly desirable place to live and therefore there is a

high demand for dwellings. Attempting to combat affordability by simply adding to supply, given

that demand is very strong, may be difficult in this context.

Byron Shire is a popular lifestyle location, with a large number of tourists visiting the area

each year, as well as tree change and sea change families and retirees moving to the area.

Moving from Sydney, Melbourne, Brisbane, and even Perth for the lifestyle on offer, these

people have the money to afford dwellings in the Byron Shire area.

Housing supply appears to have failed to keep pace with population growth, and existing and

new housing stock is further eroded by competing demand for short term, high return, holiday

and tourist accommodation. This includes a proportion of absentee home owners who have

holiday homes in the shire only occupied for limited periods of time each year.

It is also clear that the existing variety of housing stock is extremely limited and as a result

there is a likelihood that some housing product preferences are not being met.

Adding to the supply of dwellings and the diversity of dwellings in this context may be

ineffective in impacting affordability.

2. Supply and Demand (b): Compared to demand, land and housing supply is low.

Some local community members are living in makeshift dwellings – including garages, sheds,

and caravan parks. Council changes to encourage secondary dwellings have increased

opportunities for people living in makeshift dwellings to access more formal accommodation –

from garages into secondary dwellings – and this has been a good outcome for peoples’

wellbeing; however it hasn’t necessarily meant that extra dwellings have been made available

to meet population growth forecasts. Secondary dwellings have also allowed primary home

owners to shift into the secondary dwelling in order to rent the primary residence for tourism

purposes.

There is limited urban/residential land and the cost of land is high, and developers have

indicated they find it difficult to make developments stack up financially given this cost.

There were comments that hard infrastructure in some areas is ageing and there are

questions about upgraded capacity being needed in some areas, and this contributes to the

cost of development for developers through infrastructure charges, and affordability for

buyers (as well as having cost implications for Council).

Those that are vulnerable and most susceptible to housing affordability issues in Byron Shire

include people on low incomes and unemployed, young people and families and older

people. Options for older people to live in smaller dwellings in an integrated neighbourhood

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setting are limited. The number of people 75 years of age and older is expected to double in

the Byron Shire between 2011 and 2031 therefore the demand for appropriate accessible

dwellings, retirement living, and residential aged care will increase strongly.

3. Affordability: Housing affordability is an issue impacting some community members,

particularly people on low incomes, young people, families, and older people.

The most acute housing stress experienced in the Northern Rivers Region is occurring in

Byron Shire, and mortgage stress and rental stress in the Byron Shire is higher than in New

South Wales as a whole. Some local residents are renting single and double garages in

Byron Bay and Bangalow, and sometimes people are leaving towns and jobs because the

area is unaffordable. In some instances the lack of housing and the alternative housing

arrangements people are living in (including garages, caravan parks and cars) can contribute

to health and wellbeing impacts.

Accommodation costs seem ‘out of step’ with local incomes and this might be explained

because housing prices are impacted by people moving to the area to retire or to use the

property as a holiday home, and investors purchasing a rental property (often with a view to

move to the area at some point).

4. Community perception (a): There is a community perception that smaller lot sizes, and

attached dwelling types negatively impact an area. There is a stigma associated with social

housing, particularly as a result of the way some of this housing product has been built (in

clusters) and managed (poorly maintained), which makes it difficult to argue a case with the

community for its expansion. There is also the perception that more diverse housing products

will adversely affect the character and attractiveness of the region.

Local views and perceptions about housing in the Shire present a conundrum for Council’s

forward planning outcomes. On one hand the community supports efforts to increase housing

diversity to enable people to afford and own life cycle appropriate homes; but on the other

hand they have an underlying desire to preserve the character of the area which is reflected

in larger lots and houses, and rural vistas. Central to the issue are the perceptions that

smaller lot sizes, attached dwellings and taller buildings do not suit the character of the area

and the strong negative stigma associated with low cost and social housing due to past

approaches elsewhere.

The community also prides itself on having a green and ecologically sustainable image and

some concern has been expressed that certain urban areas may already be approaching

their capacity in terms of liveability.

These perceptions can contribute to public opposition to any residential development that

proposes an alternative to the standard blocks and detached houses. This in turn can

adversely influence a developer’s decision to offer a different product due to concern about

the approval timelines and viability.

The challenge for Council is to achieve diverse and affordable housing products, whilst

acknowledging and protecting what makes the region unique. Care needs to be taken to

ensure that adjustments to regulations do not have any unintentional outcomes including

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erosion of liveability. Appropriate Council provisions around lot sizes, road widths and other

development factors can encourage diverse housing whilst maintaining the town atmosphere

and rural outlook.

5. Community perception (b): There is a perception that the Byron Shire Council is not (or has

not been) supportive of new development, that the process of gaining development approvals is

difficult and time consuming, and that development is expensive in comparison to other areas.

The perception that Council is anti-development contributes to developers pursuing ‘safe’

development types that are similar to others in the area, rather than pursuing different

dwelling types that contribute to diversity.

While this perception is starting to shift, the restrictive growth policies of previous

administrations may also be contributing to financing difficulties, whereby banks are less

likely to support projects in the Byron Shire because there is a risk that the project will be

delayed in Council decision making and appeals.

Council processes need to be efficient and give certainty to developers about what is

acceptable residential development in order to give confidence to the development industry

and reduce holding and development costs. Communicating this message to the community

(developers and residents) is a challenge for Council, and would require an concerted

ongoing effort. If Council processes and planning provisions are not getting good outcomes,

this would be even harder to communicate effectively.

6. Regulation: Planning, development regulation could be reviewed – rules regarding

development (minimum lot sizes, secondary dwellings required), infrastructure

charges/development contributions, height restrictions/CBD, flooding - could be further explored

to consider opportunities to encourage diversity of product and ease cost.

Council policies, such as infrastructure charges contributions, height restrictions, minimum lot

sizes, engineering standards, etc are influencing development outcomes and support the

status quo in terms of traditional housing product. Provisions need to be reviewed to allow for

more innovation and diversity and ultimately reduce development costs. There are examples

of work done by others (example Economic Development Queensland) that support

functional, attractive smaller homes on smaller lot sizes. These could provide a template for

adapting for Council purposes.

The literature reviewed suggests that the LEP needs to be reviewed to include appropriate

aims for affordable housing and housing choice, which should be reflected in objectives

under the R2 Low Density Residential, R3 Medium Density Residential, B2 Local Centre and

B4 Mixed Use zones, where residential development is permitted. This includes secondary

dwellings, dual occupancies, attached dwellings, multi-dwelling housing, shop top and

seniors housing. The LEP should also prioritise urban consolidation through facilitating

redevelopment and infill development opportunities, which in turn will enable more efficient

use of services and facilities.

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Planning regulation in the Byron Shire has proven to be influential in driving development

outcomes. Previous policies including support for secondary dwellings have been taken up by

the market, so the impact of changed regulation cannot be under-estimated.

Individual provisions in the LEP may also be stifling greater diversity and housing

opportunities. For example: the definition of shop top housing which only allows it to occur

above the retail and commercial component, and not at the rear; the interpretation of heights

limits (with a mis-match between allowable storeys and RLs); and floor space ratio (0.4:1) in

the B4 Mixed Use Zone in Tweed St, Brunswick Heads, may be limiting potential.

7. Development proposals: Achieving a diversity of dwelling types is impacted by developers

and builders preferring to deliver generic, tested, cheap and easy developments, and the

market/community perception of different dwelling types.

The lack of land supply (perceived or real) in Byron Shire over the past 20 years has resulted

in Byron Shire missing out on two decades of housing evolution. Consultation highlighted that

developers may be less familiar with new, innovative building designs including new designs

that would suit the Byron Shire character. This is reinforced by the new LEP 2014, which has

generally maintained a minimum lot size of 600m2 in most residential areas to be consistent

with past planning controls.

There may also be a disincentive to provide smaller housing options with developer

contributions proportionally favouring more bedrooms.

Real estate agents are driving the types of dwellings being constructed to some degree

(including dual occupancies and secondary dwellings) as they have a perception that they will

be quickly approved by Council and improve property values. They are an easy development

for ‘mum and dad’ clients with a quick return. This does not necessarily encourage innovative

thinking or denser housing options.

There is no indication that different dwelling types would be unpopular in the local area. A

number of consultation respondents were asked if units/townhouses/small dwellings would be

difficult to sell, and these respondents suggested that they would sell without difficulty.

4.2 Implications for housing diversity

The issues identified through our consultation and other investigations have begun to inform our

thinking about future actions and recommendations. Without expanding on these prematurely,

the following broad actions and recommendations have been identified:

1. Council leadership.

Council conveying a strong, clear message that it is focused on the issue of housing in

the Shire and has introduced changes to support greater diversity and more affordable

housing options. These actions are intended to provide long term sustainability for the

Shire and its residents as well as achieving high quality built form outcomes consistent

with the community’s character and amenity.

Establishing processes in-house (for example, priority development assessment) for

desirable residential outcomes that deliver more diverse housing products.

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Council leading the charge to shift community perceptions that small housing/small lot

housing/attached housing can be high quality, liveable and is desirable.

Joint venture/demonstration projects/design competitions/partnering with local developers

and builders to deliver different housing products and lead by example.

2. Undertake further research to determine what housing product/s are required for the Byron

Shire.

What type of housing product will best meet the needs of those locked out of housing

options in the community (including, what price points does it need to be delivered at)?

This will inform what range of minimum lot sizes and what housing form and size might be

most appropriate.

3. Further infrastructure investigations.

Investigations into the capacity of infrastructure to determine where there are severe

infrastructure impediments to increasing densities and where there is capacity. This will

help to inform potential suitable locations for increased densities.

Identify where Council can ‘unlock’ potential for the development community through key

infrastructure projects.

Determine if infrastructure /development contributions can be reduced to promote specific

housing products (as was done with secondary dwellings) and/or implications to Council’s

revenue stream by reduced development charges.

4. Changes to planning regulation to allow for smaller housing types and lower minimum lot

sizes.

Smaller homes on smaller lots sizes will generally result in lower house prices. In

combination with design requirements to ensure functional layout and high quality

appearance, an attractive and desirable housing product can be achieved..

Consider changes to minimum requirements for road widths, boundary setbacks and

other infrastructure requirements in addition to the changes above.

5. Work with Economic Development Queensland to get the benefit from 7 years of experience

in delivering smaller and more diverse housing types and shifting community perceptions.

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5. CASE STUDIES

A separate component of the brief required investigation into best practice case studies for

promoting the delivery of more diverse housing. Economic Development Queensland (EDQ)

were identified early on and have proved to be a sound choice and a detailed summary of

investigations into EDQ and its applicability for Byron Shire Council is provided below.

A second, particularly relevant case study, has proved more elusive. A number of leads have

been examined with most having a focus on either housing affordability, or housing supply and

diversity in high density, brown field redevelopment locations. Neither of these are appropriate

to our specific investigations. UrbanGrowth NSW was considered as a NSW equivalent to EDQ;

however, their work has never been undertaken as far north as Byron Bay and they have

recently transitioned out of greenfield development and are focusing on major urban

transformation projects in inner city areas. Rather than investigating the work that UrbanGrowth

NSW now do, as this is not particularly relevant to the Byron Bay context, a review of Thornton,

a development previously undertaken by UrbanGrowth NSW has been undertaken, as a

relevant example of diverse housing products and more compact urban form that might have

transferrable learnings for Byron Bay.

5.1 Economic Development Queensland

5.1.1 Purpose and Role

Economic Development Queensland (EDQ) was formerly known as the Urban Land

Development Authority (ULDA). The ULDA was established in 2007 under the Urban Land

Development Authority Act 2007 as a statutory authority responsible for the facilitation of:

the availability of land for urban purposes;

the provision of a range of housing options to address diverse community needs;

the provision of infrastructure for urban purposes;

planning principles that give effect to ecological sustainability and best practice urban

design; and

the provision of an ongoing availability of affordable housing options for low to moderate

income households.

The ULDA was transitioned into EDQ under the Economic Development Act 2012 in 2013, a

commercialised business unit of the Queensland Government Department of State

Development, Infrastructure and Planning (now known as the Department of Infrastructure,

Local Government and Planning (DILGP)).

According to the State Government, EDQ “is a driving catalyst for economic growth through

property and infrastructure partnerships across Queensland.” EDQ works with a range of

stakeholders, including public and private sector entities, to identify growth opportunities and

facilitate and deliver property and infrastructure project solutions for the economic benefit of

Queensland. EDQ acts as “a vehicle for industry innovation and demonstration” and is

responsible for creating prototypes for the delivery of infrastructure, planning, built form, water

and energy solutions.

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The roles and responsibilities of EDQ are split into four areas:

1. Industrial development: EDQ develops, sells and leases industrial land in high demand

areas for a variety of industrial land uses, as well as providing land solutions to help retain

existing industry and attract new business investment and development;

2. Regional and residential development: EDQ works with local governments and other

industry stakeholders to identify growth opportunities and deliver innovative infrastructure

and property project solutions for a variety of communities, typically in regional areas;

3. Urban development: EDQ acts as a master developer in this segment, working with private

developers to deliver major urban development and urban renewal projects; and

4. Planning services and development infrastructure: EDQ works with local governments to

identify strategic and underutilised land parcels and provide the following services:

a) Declaration of priority development areas (described in more detail below);

b) Provision of strategic and infrastructure planning services;

c) Providing development assessment services for priority development areas; and

d) Identifying and facilitating catalyst or upfront infrastructure to support development.

5.1.2 Regulatory Framework

The Economic Development Act establishes the powers and responsibilities of EDQ and the

Minister for EDQ (MEDQ), who is responsible for EDQ. The purpose of the Act is to “facilitate

economic development, and development for community purposes, in the State.”

As stated above, one of the main functions of EDQ, in achieving the purpose of the Act, is to

identify and declare priority development areas (PDAs) and provisional priority development

areas (PPDAs) throughout Queensland, where specific economic development outcomes are

being sought. For example, the releases of surplus government land to the market in response

to housing pressures resulting from growth in the resource sector.

A PPDA is declared when there is an overriding economic or community need to expedite a

development and the development proposed does not compromise the implementation of the

relevant planning scheme. In contrast, PDAs are declared for larger sites and where a

development is more complex than what is proposed for a PPDA. Development in a PDA does

not need to be consistent with a planning scheme.

The declaration of a PPDA or PDA effectively removes the parcel of land from the regulatory

framework for planning and development under the Queensland Government’s Sustainable

Planning Act 2009 (SPA). The development process under the Act is more streamlined and

leads to effective plan making, shorter timeframes and fewer requirements during the

assessment process. Key features of the development process under the Act are identified

below:

Plan Making

Provisional land use plans (PLUP) are created to regulate development within a PPDA and

expire when the PPDA ceases (after three years). An interim land use plan (ILUP) comes

into effect the day a PDA is declared and regulates development within the PDA while a

development scheme is prepared. A development scheme must be prepared for a PDA

within 12 months after the area is declared removing it from the control of a planning

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scheme and remaining in place for as long as the PDA declaration. As a development

scheme regulates development within a smaller area than a planning scheme and is

intended to facilitate the sole purpose of the Act, it is a relative simple and flexible document

compared to a planning scheme.

The development assessment process for an application under the Act is much simpler than

an application under SPA, as there is only one level of assessment, no referrals to state

agencies, no negotiated decision notices and no third part appeal rights.

In addition to the declaration and planning for PPDAs and PDAs, the EDQ is also responsible

for carrying out economic development and development for community purposes both within

and outside of PDAs, coordinating the provision of infrastructure, constructing roads and fixing

charges.

5.1.3 Declared Priority Development Areas and Use of Development Guidelines

There are 26 declared PDAs throughout Queensland, including the following:

Caloundra South;

Fitzgibbon Chase (northern suburb of Brisbane);

Roma;

Queen’s Wharf Brisbane;

Tannum Sands (Gladstone); and

Blackwater.

These examples show that EDQ can declare a PDA anywhere in Queensland, from regional

areas, to coastal areas and even within the Brisbane CBD.

Within each of these PDAs, a development scheme has been prepared, which identifies specific

development outcomes to be achieved, such as maximum densities and height limits, as well as

objectives for the overall intended development of the PDA, i.e. the importance of housing

diversity and choice through a mixture of densities, types, designs, tenures and affordability.

The development schemes also often reference guidelines prepared by EDQ to guide

development of all different types, including the following:

Residential 30: this guideline outlines principles and provisions for the planning, design

and delivery of mixed residential development, typically no more than three storeys in

height and with a net residential density of up to 30 dwellings per hectare;

Accessible housing: this guideline outlines standards for the development of accessible

housing;

Residential infill in Blackwater PDA: this guideline provides guidance for infill

development in Blackwater that falls within one of the following categories:

a) Reconfiguration of a lot less than 2000m2 for residential purposes;

b) Development for a House that is PDA assessable; and

c) Development for Multiple residential on a lot less than 2,000m2;

Neighbourhood planning: this guideline outlines the standards for the planning and

design of neighbourhoods;

Low rise buildings: this guideline relates predominantly to housing up to two storeys in

height, but could also apply to low rise mixed use and single-purpose commercial, retail

and community buildings, and should be applied to greenfield and infill development;

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Medium and high rise buildings: this guideline outlines standards for the design of

medium (three to six storeys) and high (seven storeys and above) rise development; and

Centres: this guideline sets standards for the planning and design of centres.

Figure 1 and Figure 2 below provide examples of the neighbourhood design principles

encouraged by the Residential 30 Guideline.

As mentioned above, EDQ plan and develop prototypes for innovative planning and housing

design, to achieve more diverse and affordable housing products. One example of such a

development is Fitzgibbon Chase, a residential development just north of Brisbane. Maximum

building height is two storeys and land sizes in this development are as small as 45m2, but

predominantly include lots ranging in size from 50 to 310m2 to achieve a maximum density of 58

dwellings per hectare. A number of contributing factors allow EDQ to achieve this outcome,

including the use of laneways, design and placement of infrastructure and services, reduced

boundary setbacks overriding the requirements of the Queensland Development Code (QDC))

and a good relationship with the builder responsible for the project. All products are freehold,

with no community title arrangements, in order to simplify funding and ownership arrangements.

EDQ have also prepared plans to show home owners how smaller lots can be developed and

still have sufficient room for luxuries, such as sheds, caravans and boats. The products that

EDQ offer as part of this development are identified as an affordable housing product, which are

located in close proximity to public transport opportunities and other services and facilities.

Figure 1. Typical Lot Arrangement

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Figure 2. Case Study of 30 Dwellings per Hectare

5.1.4 Priority Development Infrastructure Co-Investment Program

As mentioned above, one of the responsibilities of EDQ is identifying and facilitating catalyst

development or upfront infrastructure that will help to encourage and strengthen economic

growth. The Priority Development Infrastructure (PDI) Co-Investment Program is a mechanism

used by EDQ to support key infrastructure projects.

The PDI program involves EDQ partnering with a local council, water distributor-retailer, state

agencies and/or developers and funding infrastructure projects that are expected to result in

significant economic benefits for a community. The program is not a grants program and all

investment projects are required to demonstrate how they will facilitate and accelerate

economic benefits for a region, including the generation of further investment.

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A certain level of co-investment may be required for a PDI project, depending on the suitability

of the proposed development. Local governments are also encouraged to apply lower

infrastructure charges, as an incentive to participate in the PDI program.

Funds are provided by EDQ for PDI projects on an interest free basis; however, EDQ does seek

a return on all investments to enable the ongoing funding of PDI projects. Not all projects are

required to pay the entire funding amount back to EDQ and this is determined on a case by

case basis. The general rule is that repayment must be made to EDQ within 15 years, by way of

either payments at each plan sealing, special infrastructure levy or periodic payments.

5.1.5 Key Considerations for Byron Shire Council

The most important consideration when identifying how the EDQ model might be applied in

Byron Shire is the legislative framework that allows EDQ to develop innovative and diverse

housing products. EDQ are exempt from compliance with the QDC and any planning

instruments that might have otherwise applied to the proposed development area. They are

therefore able to prepare and implement a development scheme that achieves key objectives

relating to liveability and affordability, without being bound by other statutory requirements, in

terms of design, timeframes and other relevant matters. As this legislation is not currently

available to Council and requires State level consideration, other ways of achieving diverse

housing products (not necessarily as small as those developed at Fitzgibbon Chase) need to be

identified.

The EDQ model still provides some useful matters to consider in this regard, including:

The overriding principle for EDQ to deliver a different product at a different price point

requires two things: one, reducing the size of lots and two, reducing the size of houses.

By providing smaller products at a reduced price point, this is one way that the current

issue of housing affordability (as identified in Section 4.1 of this report) could be

addressed.

Planning provisions, regardless of the legislative framework, need to be changed to allow

for smaller lots and reduced setback requirements in tandem with design requirements

for smaller buildings on smaller lots. This is one of the issues identified in Section 4.1 of

this report and the guidelines produced by EDQ provide good examples of how

provisions can be amended to be more flexible and supported of smaller lots and more

diverse housing products.

It is possible to deliver attractive, practical housing on all sorts of lot sizes and on

separate title, that meet the different needs of various segments of the communities,

including the aged, young families, first home buyers, renters, etc. As stated above, the

guidelines and other material produced by EDQ provide examples of designs and how

this can be achieved. They have delivered successful housing products for approximately

eight years and have undertaken residential surveys for feedback on the success of the

products they are delivering. Combined with their experience, this feedback assists with

the review and improvement of their approaches to planning and design. The

developments undertaken by EDQ can act as examples to the development industry of

successful, affordable and tested products, which may help to address the existing issue

of generic and ‘easy’ development products being the preferred built form in Byron,

restricting the provision of more diverse products.

Similarly, engineering standards should support innovation, and be more flexible.

Consideration needs to be given to what is actually required, rather than standard

practice. This will impact the cost of development and the development potential of a site.

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The guidelines prepared by EDQ and a range of other documents produced by EDQ

provide examples of these provisions and could be used to inform Byron Shire Council’s

approach to this issue and are a logical first key step. As detailed in the point above,

these examples and guidelines can be used to address the existing issue of generic and

‘easy’ development products being the preferred built form in Byron, by showing more

innovative solutions to infrastructure provision and clarifying the extent of infrastructure

actually required.

EDQ also promote the importance of having a suite of mechanisms in place to support

more affordable and diverse housing products (not just small lots), which include:

a) Targeted developer incentives, such as reducing contributions where housing

products meet certain requirements, i.e. lot sizes less than 400m2;

b) The use of alternative service providers, who can provide localised services at a

lower cost (depending on the size of the overall development);

c) Relaxations for road design (widths) standards;

d) Use of laneways in developments; and

e) Self-certification.

The success of any innovative or new approach to development relies on promotion and

championing of the product. The project would benefit from Council taking an active role

in demonstration projects (where possible) to address concerns from the community,

developers and builders. This will help to address one of the issues identified in Section

4.1 of this report, in that there is a perception that new development is not supported in

Byron and that approvals are difficult to obtain and developments are expensive to

undertake. By acting as a champion for diverse housing products and having more

flexible provisions to do this, Council will be able to demonstrate that this is not the case

and that Byron is open for this kind of business.

The language around providing more affordable and diverse products needs to change,

as certain terms and phrases reinforce preconceptions. For example, using the phrase

‘innovative housing that provides diversity’ rather than ‘affordable small lot housing’; and

‘smaller homes on smaller blocks’, can be town cottages or similar. This is one way that

the issue about community perceptions (identified in Section 4.1 of the report) of different

housing products, particularly smaller lots, can be dealt with and negative connotations

can be reduced, simply by rephrasing the product.

It is important to look at ways that development applications can be fast tracked in order

to bring products onto the market sooner and reduce holding costs. This relates to the

earlier point made about changing the regulatory framework for development to support

more diverse housing products.

Be clear about the price point (for purchasers and renters) that is required to house

certain segments of the community. Being clear about this will inform the standards for

house size, lot size and road widths that should be supported, and targeting relevant

incentives.

There is a difference between affordable housing products to purchase and to rent. There

needs to be a mechanism to ensure that investors purchasing more affordable properties

are also passing on these savings and charging affordable rental rates. This will help to

address one of the key issues identified in Section 4.1 of this report, being housing

affordability.

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5.2 Thornton, UrbanGrowth NSW

UrbanGrowth NSW is a State government owned enterprise established in 2013. It replaces the

former Landcom, and has a mandate to plan and deliver major urban transformation programs.

UrbanGrowth NSW is transitioning away from greenfield residential development, that was part

of the Landcom approach, and is focusing instead on urban transformation, and master

development of government land. These projects are of state or regional importance, and need

to have the scale to deliver significant housing mix, jobs and community amenity.

5.2.1 Compact Housing Concept

When looking at overall housing diversity, UrbanGrowth NSW identified a gap in the delivery of

quality housing on smaller lots, which can also contribute to meeting the increasing demands of

smaller households (which are increasing as a trend throughout Australia), improving

community sustainability and delivering improved housing affordability. As part of their 21st

Century Living Program, UrbanGrowth NSW undertook several developments to demonstrate

how compact development can be undertaken in a way that delivers quality housing products.

One of these developments was Thornton, in north Penrith.

5.2.2 About Thornton

UrbanGrowth NSW undertook market research, which revealed a strong demand for freehold,

more compact, low maintenance homes from potential buyers. As a result, a key objective of

Thornton was to provide housing diversity with a range of price points. Another primary focus of

the development was to create a transit oriented area with increased amenity, landscaping,

open space, employment opportunities, recreational and social facilities and a community hub.

Development at Thornton commenced in 2012 and is due for completion in 2020. Previously

industrial land, Thornton has a total area of 40 hectares and will achieve an overall density of 36

dwellings per hectare (between approximately 1,500 to 1,800 dwellings in total), with lots

ranging in size from 125 to 452m2. Thornton will also include retail and commercial

development, capitalising on its strategic position adjacent to a regional centre and Penrith

Railway Station.

5.2.3 Housing Typologies

In order to provide a range of houses within different price points, UrbanGrowth NSW worked

with industry to produce homes in a cost effective way. To do this, they created flexible planning

controls, designed a range of compact housing types and constructed the housing. Through

this, they introduced a system that could be replicated by the building industry within the project

and potentially future projects seeking similar outcomes.

In relation to product design, five compact housing typologies were utilised in Thornton. These

typologies are listed below and provide a good example of how products can be named and

marketed to reduce negative assumptions about compact housing:

1. Terraces and townhouses;

2. Patio homes (similar to duplex or semi-detached dwellings);

3. Courtyard homes (‘zero lot’ detached dwellings, where one or more walls of the dwelling

adjoin the boundary with the next lot);

4. Garden homes/cottage lots (more traditional detached houses on smaller lots); and

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5. Loft/garden apartments (similar to ‘fonzie flat’ or studio dwelling).

Research undertaken by UrbanGrowth NSW showed that for terrace houses, only four lot

widths were really required, being 4.5 metres, 5.1 metres, 6.6 metres and 7.5 metres. This is

because lot sizes that fall between these widths don’t deliver any more usable accommodation.

For example, a terrace home built on a six metre wide lot can only provide the same level of

accommodation and layout as a 5.1 metre wide lot, as it is not wide enough to accommodate

two secondary bedrooms side by side.

A photo of some courtyard homes is provided below (Figure 3), along with a typical floor plan of

a courtyard home (Figure 4). Typical lots and access arrangements, as well as lot siting and a

photographic example of each of these dwelling types is provided as Figure 5.

Figure 3. Typical Courtyard Home

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Figure 4. Typical Courtyard Home Floor Plans

Ground Level

First Level

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Figure 5. Dwelling Typologies for Thornton

5.2.4 Design Concepts

The concept of a more modern and useful laneway was also adopted as part of the

development at Thornton. UrbanGrowth NSW found that purely service based laneways can

have negative connotations and lead to poor perceptions of a development based on previous

experience. A number of the housing typologies listed above have rear access arrangements,

as well as including secondary loft apartments above garages with pedestrian entrance from the

laneway, to provide activation and surveillance of this space.

UrbanGrowth NSW also put careful consideration into the design of underground services.

Services for small lot housing developments can significantly influence street design, lot

configuration and the location of buildings, all of which will have an impact on ultimate yield,

design and amenity. In trying to achieve more compact housing forms, UrbanGrowth NSW

recommends that co-sharing opportunities of trenches for service providers be investigated, as

well as making use of the front road reserve before automatically placing services within a rear

lane. Services should also be designed early for a development, so that connection services

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can be co-located wherever possible and metering units can be integrated into the design

features of a dwelling.

5.2.5 Key Considerations for Byron Shire Council

UrbanGrowth NSW has identified some key learnings from the Thornton Project. These

learnings, along with other aspects of the development, form important considerations for

Council when considering similar development and are listed below. It is important to note that

unlike EDQ, UrbanGrowth NSW does not have any powers to override planning legislation and

instruments in effect for a particular area or create their own land use plans. When undertaking

development, UrbanGrowth NSW must demonstrate compliance with the relevant planning

instruments, just like any developer. The development at Thornton is therefore a very fitting

example of what can be done to achieve housing diversity within the existing scope of planning

requirements. Key learnings from this development include:

Council needs to identify a vision and exactly what they are trying to achieve before

commencing the planning process. A target market, as well as a price point/s, needs to

be identified, before proper planning and design can be undertaken to achieve this.

Council needs to lead by example including encouraging and supporting developers and

other industry bodies who are committed to designing, researching, redesigning, building

and demonstrating what Council is trying to achieve in regard to housing diversity. This

will help to address one of the key issues identified in Section 4.1 above, regarding a

perception that new development is not supported in Byron, approvals are difficult to

obtain and development is expensive to undertake. This may also help to change

development patterns of easy, generic and tested developments that are a known

product for developers, by showing them that there are other ways of producing an

affordable and desirable product.

The naming of housing products is extremely important for creating an image for people

of what a development is going to look and feel like. For example, a garden home sounds

much more inviting than small lot housing and patio homes sound more pleasant than a

duplex, yet they are describing the same product. Community perceptions about different

housing products, particularly smaller lots and affordable housing, is often negative and

developments are often stigmatized by previous experiences by poorly built and

managed developments. This is one of the key issues identified above in Section 4.1 and

can be challenged by naming products in a way that does not trigger negative images for

the community.

Planning controls need to be flexible and encourage innovation. More diverse urban

outcomes need to be supported in suburban areas to achieve higher densities, balanced

with design outcomes to achieve the desired amenity and standard of living. This

correlates to the issue identified in Section 4.1 above, stating that planning regulations

need to be changed to become more flexible and supportive of more diverse housing

products.

Designing and locating services and access arrangements (i.e. laneways) plays an

important part in the design and overall density outcome for compact housing

developments. These matters need to be considered by Council in the upfront planning of

a development, as well as designing planning controls for such developments.

Research is incredibly important and innovation is an iterative process. Focus groups

representing target markets need to be consulted and their feedback needs to be

reflected in housing designs. This is also another way of changing community

perceptions, by involving them in the process.

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Partnerships are powerful. More can be achieved by working with likeminded partners

who support the vision of the development and are committed to innovation.

UrbanGrowth NSW had the support of key stakeholders, including the State government

and the building industry, which enabled the project to become a reality.

Council needs to understand tradeoffs. UrbanGrowth NSW identified early on in the

process through their market research that buyers wanted their own home, on their own

block and they preferred detached houses; however, they were willing to trade yard

space for amenity, provided that the lot was still freehold title. This is consistent with

findings from the consultation undertaken with stakeholders in the Byron community, who

have identified that residents are often happy to live in sub-standard dwellings and

sacrifice space and comfort, just to live in Byron and be a part of what the community has

to offer.

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6. RECOMMENDATIONS

Byron Shire is a highly desirable place to live and visit. Its natural features, climate and local

character that attracts visitors, workers, families, sea-changers and retirees alike. Accordingly

demand for housing – permanent, rental and short term/tourist accommodation – is high. Those

same natural assets that lend to the shire’s attraction, need to be managed and protected for

the important contribution they make to local environmental processes and the scenic amenity

of the region. They are also part of a set of considerations that influence and limit the land

available for urban purposes.

The high demand for housing, and limited land available for urban development, in part

influence and drive up housing prices. Housing supply appears to have failed to keep pace with

population growth, and existing and new housing stock is further eroded by competing demand

for short term, high return, holiday and tourist accommodation.

It is also clear that the variety of housing stock is extremely limited. The current mix of dwellings

in the Byron Shire at 2011 showed 82% of dwellings were separate houses, and 18% were a

mix of detached, attached, and other dwelling types. This limited mix can also be inferred to

mean that some housing product preferences are not being met.

Byron Shire Council recognises the housing challenge facing the Shire. It has committed to

develop a comprehensive Urban Residential Land Strategy – a component of which is to

encourage greater housing diversity. In particular, it is hoped that a range of mechanisms,

initiatives and planning policy change will lead to:

more variety of dwelling types appearing in the local market, which will also help satisfy

unmet housing preference across the whole community (in particular key workers,

families, empty nesters and first home buyers) and thereby better responding to housing

needs throughout the full life cycle;

slightly higher yields of housing stock from the same land supply (through for example,

supporting smaller housing on smaller lots, increased height allowances, and so on); and

as a consequence of these,

greater price variation (particularly showing up at or below the current median price point)

that benefit home owners and/or is passed on by investors into lower rental prices.

The recommendations following, encompass a variety of tools and mechanisms focussed on:

Regulatory or policy change;

Internal Council governance; and

Council led initiatives.

Regulatory and policy changes aim to remove unnecessary impediments to housing diversity

and allow more flexible responses and innovation in housing. This is in keeping step with more

contemporary residential development controls used elsewhere. On their own they will likely

only facilitate some slower take up and change. Accordingly the suite of recommendations

(governance and other initiatives) working together will likely generate more rewarding and

timely outcomes.

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Regulatory changes include:

Targeted amendments to subdivision provisions;

Consideration of building height increases;

Identification of dwellings per hectare targets; and

Reconsideration of floor space ratio criteria.

Where possible, changes that can be incorporated into the LEP are preferred, over DCP

provisions which tend to be interpreted as guidance only. However, it is noted that in some

instances DCP provisions may be both appropriate and preferable.

Internal governance/or policy matters focus on:

Targeted developer incentives (reduced/waive contributions costs for specific

development types);

Clear vision on what housing product/price point is specifically being targeted and use

this to inform policy change, future investigations; demonstration projects, etc.;

Additional studies and investigations for residential land supply;

Investigation into targeted infill redevelopment sites; targeted height bonuses (sites or

precincts); and in particular to identify new residential land opportunities that have fewer

impediments for residential development (that is, appropriate infrastructure, fewer

topographic/environmental constraints, etc).

Council led initiatives to create:

Fast track approvals for targeted residential development (by type or quality) (reduce

holding costs; bring products on the market sooner);

Changing the language around housing types (town cottages, garden homes; patio

homes);

Demonstration projects/joint ventures/partnering – building a relationship with the

development industry of sharing ideas, expectations;

Best practice model/exemplar information, suitable housing typologies, etc.;

Cultural change – communicating that Council is motivated to address the issue of

housing its local residents and is actively encouraging high quality, diverse housing mix;

seeking design excellence; and working with the development community for better,

sustainable outcomes for its community; and

Partnerships with like-minded partners Urban Growth NSW, EDQ, local UDIA groups, etc.

The full range of recommendations are detailed in the following table and diagrams.

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

Regulatory changes

Byron Shire is a highly desirable place to live, and therefore has a high demand for dwellings. While simply adding to supply will not necessarily combat housing prices or

diversity, providing for better yields, increased densities and additional well located urban land may assist.

Housing stock in the Shire is currently dominated by detached housing and there is a lack of product diversity.

Provisions that support increased yields of housing stock especially in greenfield areas and through infill development.

Regulatory changes will be

used to address these issues

in the following way:

Remove impediments in

planning controls

restricting different

housing forms;

Introduce more

contemporary planning

controls for residential

development (that still

reflect the shire’s

character and form);

Support increased yield

from the same amount

of land;

Allow for smaller

housing on smaller lots,

Explanation: Noting the actions under ‘Council Leadership’ and the importance of taking the community on the journey, a practical approach

may be to focus initially on pilot test areas within existing urban precincts using master planning projects before making shire-wide changes.

Given Byron Town centre (infill suburban) and West Byron (greenfield suburban village) are currently the most advanced, Council may focus

on these locations first to promote and implement the new concepts and recommendations.

1. Building on the experience gained from the Byron Town Centre Master Plan and West

Bryon projects, identify and apply density targets and dwelling mix as per Table 18

attached to other urban locations (and having regard to the initial policy context set out

below):

Byron Shire Urban Neighbourhoods have been identified by Council (see diagram

below). This diagram recognises the differences of local communities across the Shire

and that regulatory changes may be more locationally specific in some instances,

reflective of the local character and community. This categorisation identifies broad

neighbourhood/character types as follows:

Predominantly new greenfield development areas;

Future housing likely to be in the form of infill /redevelopment;

Towns/villages with distinct local character; and

Other suburban neighbourhoods.

In order to make some recommendations on

future density targets and mix it is necessary

to make assumptions about dwelling

preferences using the latest available

propensity data; this approach has

limitations when forecasting dwelling mix

projections. Details of this process are

included as Attachment D to the report.

It is important that the higher proportion of

smaller lots, semi-detached and attached

properties should not be only targeted

through new greenfield development, which

would then have a substantially different feel

to other locations, but also should be located

near facilities and services around the town

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

which should translate

into lower price points;

Create space in the

development process for

more creative, diverse

housing types;

Articulate Council’s

policy position more

specifically, particularly

through identified

density targets;

Initially density targets could be introduced and applied broadly across these

neighbourhoods as follows:

Suburban Village Greenfleld; Suburban Village Infill – 20 dw/ha;

Suburban Heritage ; Suburban – 15 dw/ha.

Target densities of 20 dw/ha in some zones are more likely to be achieved with

complementary 3 storey height limits in place.

Further investigation and refinement of targets based on precincts; localities or site

specific investigations should be undertaken. This would be a high priority task.

centres. The mix of dwellings suggested

above will need to be balanced throughout

the urban areas of the region. An approach

for achieving this is discussed later under

‘Further investigations’.

Density targets would work hand in hand

with floor space ratio provisions (LEP) being

retained to ensure scale of future

development remains proportional to lot size.

This could be supplemented by lot

dimension and setback requirements (DCP)

as per Table 18.

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

2. The Byron Town Centre master plan study can be used to guide and inform regulatory

changes specific to the Town Centre and the immediate surrounding ‘suburban infill’

area via LEP amendments including:

Identify sites or blocks where 3 storey development is expected;

Ensure opportunities for shop top; mixed use development are encouraged and

supported;

Removal of floor space ratio requirements; and

New DCP Chapter articulating specific design excellence /best practice guidelines

for new mixed use/ residential development particularly for 3 storey typologies.

This may give rise to possible adverse

community reaction to changes – negative

perception of higher buildings and concerns

about additional traffic generation. This

should be explored and a response

considered.

3. Zone changes – Investigate land that could be zoned R3 or B4 to improve opportunities

for meeting housing mix targets. Criteria for possible conversion may include:

Proximity to services (community, retail, employment);

Good access (pedestrian, transport);

Adjoining existing centres;

Existing traditional retail/commercial centres;

Appropriate infrastructure capacity (or ability to upgrade).

4. Adjust lot dimensions and setback requirements for the various residential lot types as

per Table 18 and Table 19 below.

5. Consideration of floor space ratio requirements within local planning regulation.

There are three approaches that can be taken in relation to floor space ratio (FSR)

provisions:

1. Adopt density targets and minimum lot size recommendations and remove

FSR provisions; or

2. Adopt density targets only and adust FSR provisions to suit either infill and

Suggest ‘road testing’ a number of DAs to

determine outcome of removal of FSR

provisions, and a review of existing

alternative planning provisions to ensure

other design and planning outcomes will still

be achieved.

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

greenfield development areas; or

3. Adjust FSR and minimum lot size provisions to facilitate higher densities,

without adopting any density targets (mainly suited to infill development

areas).

There is potential for conflict between the policy intent and outcomes of proposed new

provisions if they are retained with new lot size and density targets. Planning outcomes

ordinarily sought through this mechanism can also be achieved through alternative

provisions including:

Private open space provision;

Height and setback standards;

Urban design outcomes and other built form requirements.

However there is also feedback to suggest that FSR is a useful current tool for avoiding

over-development on individual sites and should be retained.

Policy changes and further investigations

Further research and investigations by Council will sharpen the focus and effectiveness of regulatory (and other) recommendations made in this report. Further information

that drills down into the detail of some recommendations will also better inform consequences or trade-offs of some actions, and identify additional opportunities to deliver

additional, and more diverse housing in the Shire

Possible policy change –

reduced or waived

development contributions or

other fees and charges (i.e.

lodgement fees) for specific

residential outcomes/

products

1. Reduce or waive /developer contributions or lodgement fees specifically for semi

attached/attached dwellings. Further work should be undertaken by Council to:

Understand cost implications of lost revenue;

Determine how narrow or broad the reductions/incentives should apply, that is:

i. across the Shire or more locality /site specific ;

ii. if it should apply to all residential products (or higher yield outcomes only);

Need to evaluate impact of different options

on revenue stream.

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

iii. in areas where higher density outcomes (that is, 20 dw/ha) are delivered; and

iv. whether it is linked to design excellence.

2. Review developer contribution amounts based on the number of bedrooms – the current

rates may be unintentionally discriminating against dwellings with fewer bedrooms

(studio, 1 and2).

Further investigations –

assess and identify existing

non-urban land that is

suitable for future urban

purposes.

3. Use findings from the Rural Land Use Study to determine if suitable urban land is

available and zone accordingly. Particularly focus on bringing land that is less

constrained online sooner, for example: land that can be appropriately and cost

effectively serviced; has minimal environmental or topographic constraints; close to

community services and employment.

Further investigations – to

identify:

Sites/precincts for

increased building height

changes (from 2 to 3

storeys)

targeted infill

redevelopment

opportunities

4. Using a combination of GIS analysis in the first instance and refined by on-the-ground

survey, investigate opportunities for increased building heights. In order to balance the

supporting neighbourhood character while facilitating greater housing yield/supply,

criteria could be investigated to identify likely suitable sites for an additional storey.

There is likely to be some adverse reaction to 3 storeys in the Shire as it is perceived to

be out of step with the local character. However, some further investigation to identify

possible sites, localities or precincts suitable for 3 storeys should be further explored.

Criteria for site specific locations might include:

A prominent street corner;

Of a minimum lot size (for example 750 m² to allow further redevelopment);

Adjacent to or within a certain radius of commercial, retail, mixed use, or

employment node;

Adjacent to public open space, golf course;

On land with a ground level (existing) slope equal to or more than 15%, in which

case a partial third storey is permitted below the balance of the dwelling,

Current LEP provisions generally allow 9m

above natural ground level (which could

potentially accommodate 3 storeys) however

the provisions talk of a 2 storey outcome and

this is generally considered the acceptable

outcome.

Additional Council resources will be required

to undertake this work. Results of this

process will take time. However, findings

from this can be rolled into subsequent

regulatory amendments.

Higher density development is best located

near facilities and services, and these are

near the centre of towns. This will also help

to ensure the mix of dwellings suggested

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

Where it is a requirement to provide a residual flood refuge or an environmental

area and is not likely to impact adversely on the existing or future amenity of any

adjoining land on which residential development is permitted.

Development shall have regard to overshadowing, visual impact and any impact on

privacy, and incorporate through appropriate design responses.

Alternatively a land use survey (GIS, desktop and on-site) could identify possible ‘trial’

sites (as per Policy change recommendation #4 above).

5. As above, using a combination of GIS analysis in the first instance and verified by on

ground survey investigate opportunities for infill redevelopment. Initial GIS/desk top

process could identify sites based on the following attributes:

Minimum lot size of 700m²;

Vacant land and or sites with only 1 dwelling constructed;

Land in residential zones.

Identified sites would be further refined through comparison against satellite and other

available data (local knowledge, google maps/google street view); and field work.

Land owners could be targeted with information about new redevelopment opportunities

and financial incentives.

6. Using a community engagement exercise such as master planning, charrette or targeted

workshop, develop an integrated design response to inform regulatory changes (density,

zone mix, lot size and height) that support infill development. Implement findings

through LEP amendments and/or DCP amendments.

above is balanced throughout the urban

areas of the region, including new greenfield

development and infill development.

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Byron Shire Council – Housing Needs Report

Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

Council Leadership

Identify which sectors of the community are unable to access housing (rental or purchased) and determine what product and what price point would allow them to do so

Council led initiative –

develop a process to identify

key price points for new

housing products

1. Working with and utilising EDQ’s knowledge around this space, identify target price

points for:

Key workers;

Seniors living;

First home buyers;

Families.

in the region, and which housing product/s would suit. This will inform further actions

such as incentivising certain housing products through fast tracked DA processes or

reduced fees and charges to target these specific housing types.

Additional resources required to do this

work.

A perception that Council has/is not supportive of development or supportive of residential developments

Council’s DA processes are lengthy, costly and underpinned by a risk adverse culture

Council initiatives and

governance changes

1. Low risk fast tracked DA processes for certain housing types (guaranteed approval

times; delegated decision making).

2. Create a culture of Council being proactive in addressing the housing issue and

supporting good quality, well designed and diverse housing stock for Shire residents.

3. Training, mentoring and support to DA officers and/or Councillors to build knowledge

and confidence to approve appropriate housing projects that deliver more housing mix,

under a performance based planning system.

Dedicated resources and training to underpin

a successful ‘fast track’ process will be

required

Will take time to establish culture and

demonstrate goodwill. Internal (and in time,

external) champions within the organisation

at the highest level to show leadership will

be necessary to drive change.

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Issues and type of

solution

Mechanism or Action

Detailed recommendation

Additional comments (where required)

Community perception that smaller lot sizes, and increased number of attached dwellings will negatively impact on the character of the area, and result in poor quality design

and dysfunctional neighbourhoods

Perception by developers, real estate agents, that there is no market for smaller housing; different housing products.

Council led communication

and information/marketing

1. Partner with select developers or property owners to approve and construct high quality

demonstration projects.

2. Build relationship with the local development community – via seminars, workshops, and

information sessions. Use these opportunities to:

Share information on the intent and details underpinning policy/regulatory changes;

Test changes/seek feedback from users of the system;

Look for ‘partnering’ opportunities and local community champions for housing

diversity;

Identify other opportunities that might open up opportunities for greater housing mix

at lower price points (that is, car parking provision review; developer contribution

incentives; changes to engineering standards, etc.) in relation to residential

development.

3. Develop information packages and best practice notes on a range of residential

development matters including:

Housing typologies that suit new lot dimensions and diverse housing products;

Design outcomes/requirements (internal and external);

Subdivision templates.

4. Consider changes to definitions or housing language to remove negative perceptions.

For example replace duplexes and small lot housing with ‘town cottage’, ‘garden terrace’

patio units’ and housing choice.

5. Host and organise best practice tours (in conjunction with EDQ or Urban Growth NSW)

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Table 18. Proposed Minimum dimensions for future residential development (subdivisions) and density targets

Lot Type Lot Size Lot Dimensions (minimum)

Comments and Additional Information (see separate table for setback requirements)

Mix of lots for 15 dw/ha density (%) (refer to diagrams below)

Mix of lots for 20 dw/ha density (%) (refer to diagrams below) Examples

Type A Traditional Lots

500-800m2

20m lot frontage

25m depth

OR

25m lot frontage

35m depth

OR

20m lot frontage

40m depth

Primarily one to two storey developments.

Can include three or four bedroom products.

Private open space can be primarily available in as ground level recreation areas, as well as second level balconies.

Car parking can be provided in private garages (usually two per dwelling).

45% 8%

Type B Small Lots

350-500m2 15m lot frontage

25m depth

OR

12m lot frontage

30m depth

OR

18m lot frontage

20m depth

Primarily one to two storey developments.

Can include three or four bedroom products.

Private open space can be primarily available in as ground level recreation areas, as well as second level balconies (70-120m

2 per dwelling).

Car parking can be provided in private garages (usually two per dwelling).

Can have rear access arrangements.

37% 27%

Type C Integrated Housing Lots

Combination of lots ranging from 250 to 350m

2

(minimum of three lots)

10m lot frontage

25m depth

OR

15m lot frontage

20m depth

OR

10m lot frontage

30m depth

These developments would be suited to three storeys in some locations (to be determined by Council).

Can include two, three and four bedroom products.

Private open space can be primarily available in as ground level recreation areas, as well as second level balconies (35-60m

2

per dwelling).

Car parking can be provided in private garages (usually two per dwelling).

Can have rear access arrangements.

Note: Similar product to Type D lots, although each dwelling has a freehold title.

18% 65%

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Byron Shire Council – Housing Needs Report

Lot Type Lot Size Lot Dimensions (minimum)

Comments and Additional Information (see separate table for setback requirements)

Mix of lots for 15 dw/ha density (%) (refer to diagrams below)

Mix of lots for 20 dw/ha density (%) (refer to diagrams below) Examples

Type D Large Lots for Multiple Dwelling Housing and Attached Dwellings

Lots ranging from 780m

2

to 1,400m2

26m x 30m

OR

35m x 40m

OR

35m x 30m

These developments would be suited to three storeys in some locations (to be determined by Council) and is likely to be necessary to achieve 20dw/ha outcomes.

Can include one, two and three bedroom products.

Private open space can be provided in the form of balconies or ground floor private open space for applicable units (15-30m

2 per dwelling).

Car parking can be provided in private garages or basement areas (usually one per dwelling).

Note: Similar product to Type C lots, although dwellings are located on the same lot, share common property and are typically attached/semi attached.

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Table 19. Minimum Setback and Building Length Requirements

This table demonstrates the setbacks that should be achieved (as a minimum) to provide a

suitable development footprint on the range of lot types identified in Table 18 above, depending

on the respective lot width.

Setbacks and Building Length

Lot width

10.0m - 12.4m

Lot width

12.5m - 14.9m

Lot width

15.0m - 19.9m

Lot width

20.0m +

Ground First Ground First Ground First Ground First

Front boundary 2.4* 2.4 2.4* 2.4 2.4* 2.4 2.4* 2.4

Rear boundary 0.9 0.9 0.9 1.0 0.9 1.0 1.0 2.0

Side boundary 0.9 0.9 1.0 1.0 1.0 1.5 1.2 2.0

Built to boundary walls^

0.0 1.0 0.0 1.0 0.0 1.0 0.0 1.0

Maximum length of built to boundary walls (% of lot boundary length)

70 65 60 55

* 4.5m to garage or carport wall ^ Buildings may only be built to one boundary

Notes: For corner lots, both street frontages are to be treated as the front boundary of the site with the

relevant setbacks applied.

The above setbacks are more relevant to development on greenfield sites. Infill development will need to take into consideration other locality factors such as solar orientation, privacy, street width, road function, consistency with existing streetscape, proximity of residences on adjoining properties, etc.

A minimum front boundary setback of 2.4 metres is identified in the table above. This setback has been determined on lot width only, irrespective of the area of the lot. As such, this is a minimum only, that has been identified to provide a suitable development footprint on a site, whilst also achieving an appropriate rear boundary setback.

(Compiled from Economic Development Queensland – various sources).

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Figure 6. Density Case Study – 15 dwellings/hectare

Type A lots (500-800m2) = 40 lots / 45%

Type B lots (350-500m2) = 34 lots / 37%

Type C lots (250 to 350m2) = 16 lots / 18%

Total = 90 lots / 100%

Area = 6.4 hectares

90 dwellings

15 dwellings/ha

Many large lots

Few small lots

Basic finish to parks and streets

Footpath on one side of most streets

Diversity Density Design

Type A

Type B

Type C

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Byron Shire Council – Housing Needs Report

Figure 7. Density Case Study – 20 dwellings/hectare

Diversity Density Design

Many small lots

Few large lots

Basic finish to parks and streets

Footpath on one side of every street

Area = 6.4 hectares

124 dwellings

20 dwellings/ha

Type A lots (500-800m2) = 10 lots / 8%

Type B lots (350-500m2) = 34 lots / 27%

Type C lots (250 to 350m2) = 34 lots / 27%

Type C lots (250 to 350m2) = 46 lots / 38%

Total = 124 lots / 100%

Type A

Type B

Type C

Type C

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Byron Shire Council – Housing Needs Report

REFERENCES

Australian Bureau of Statistics (ABS) 2013, 2001.0 - Census of Population and Housing: Basic

Community Profile, 2011 Third Release, http://www.abs.gov.au/census.

Australian Bureau of Statistics 2015, 3218.0 - Regional Population Growth, Australia, 2013-14,

http://www.abs.gov.au/AUSSTATS/[email protected]/DetailsPage/3218.02013-14?OpenDocument.

Byron Shire Council 2015, Byron Shire Preliminary Urban Residential Needs Discussion Paper.

Department of Social Services 2014a, Guide to Aged Care Lawi, http://guides.dss.gov.au/guide-

aged-care-law

Department of Social Services 2014b, Links to the 30 June 2014 Stocktake of Australian

Government Subsidised Aged Care Places, https://www.dss.gov.au/our-

responsibilities/ageing-and-aged-care/tools-and-resources/ageing-and-aged-care-research-

and-statistics/general-ageing-and-aged-care/links-to-the-30-june-2014-stocktake-of-

australian-government-subsidised-aged-care-places

Judith Stubbs and Associates 2008, Affordable Housing Strategy: Background Report.

Judith Stubbs and Associates 2009, Affordable Housing Options Paper: Part A.

NSW Government: Planning and Environment 2015, Population, household and dwelling

projections, 2014 edition, http://www.planning.nsw.gov.au/en-

us/deliveringhomes/populationandhouseholdprojections/data.aspx

NSW Government: Family and Community Services 2014, Expected Waiting Times, Mid North

Coast and Northern NSW,

http://www.housingpathways.nsw.gov.au/How+to+Apply/Expected+Waiting+Times/Mid+Nort

h+Coast+and+Northern+NSW.htm

Public Health Information Development Unit (PHIDU) University of Adelaide 2014, Public Health

Information Development Unit Data by LGA, http://www.adelaide.edu.au/phidu/maps-

data/data/

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Attachment A Literature Review Notes

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Byron Bay Housing Needs Assessment – Literature Review

LITERATURE REVIEW

Preliminary Urban Residential Needs Discussion Paper, 2015:

- Discussion paper relates to urban areas of Byron Bay, Suffolk Park, Mullumbimby, Ocean Shores,

Brunswick Heads, North Ocean Shores, South Golden Beach and Bangalow

- 2011-2026 Byron Shire cater for additional 6,940 permanent residents with only 400 in rural areas

(growth of 1.36% per annum) – total of 27,100 persons

- Highest annual growth rate expected in Byron, Suffolk Park, Brunswick and Bangalow (1.8%), with

Mullumbimby around 1% and rural areas and Ocean Shores around 0.2%.

- Additional 2,400 new dwellings project by 2026, 7% buffer for holiday letter brings estimate to 2,560

- Regional growth projection of 60,400 by 2031 (Far North Coast Region)

- Tourism accommodation inflates demand for accommodation by swelling overnight population by

around 22% and draws on availability of certain types of housing for permanent residents

- Aging population – 20% of population over 65 by 2026 (78% increase in this age group)

- Lone person households expectation to increase from 2% to 29% by 2026

- Prospect of 41% of persons over 85 living alone

- Average of 208 new dwellings approved each year, with 83% in urban areas

- Over past two years, approvals for multi-unit dwellings has dropped from 80 units/year to 9 units/year

and approvals for detached dwellings has increased from 60 dwellings/year to 285 in 2013-2014

- 75% of occupied private dwellings are large dwellings (three bedrooms or more)

- Secondary dwellings recognised as source of additional housing (potential compliance issues)

- Majority of future housing stock will need to be located in urban areas

- Land allocated for urban residential needs expected to satisfy nine year demand based on current

demand and take up patterns

- Urban areas required to accommodate an additional 2,170 homes by 2026

- Consideration for essential workers (medical, emergency, teachers, etc.) and realistic accommodation

choices in proximity to their workplace

- Project partnerships with other tiers of government and/or private sector to provide

specialised/targeted housing (elderly, low income, disabled, students)

- Past population growth not truly reflective of future expected growth (slow past growth as a result of

sewer moratorium and others)

- Value of tourism and agriculture to economy, remain a priority in terms of protecting key lands and

support infrastructure from inappropriate or incompatible residential development

- Median age of population 42 years, those between 50-59 comprise highest proportion by age of

population

- Expected increase in young families

- Household size generally decreasing over past century, number of people per household expected to

be 2.26 in 2006

- Growth in couple only families and decrease in couples with children families expected by 2026

- Lone person and group households increasing generally

- Far North Coast Region Residential Submarket Analysis Report (2013) identifies three age cohort

market segments

1. First home buyer (20-34 years)

2. Upgraders (35-49 years) looking for larger or higher quality property

3. Downsizers (50-64) looking for a smaller dwelling

4. Retirees (65 + years) looker for a smaller dwelling

- Currently 70% of current housing in urban areas, with predominant building form being separate

houses. Expected to increase to 75% by 2026

- High vacancy rates as a result of holiday letting, allowance of 7% of private residential stock being

used for tourist accommodation

- Larger more luxurious dwellings are pricing people out of the normal residential market

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Byron Bay Housing Needs Assessment – Literature Review

- Lone person households accommodated in cabins, caravans, improvised housing or accommodation

attached to a shop, townhouse/units and separate houses

- Current trend of decreasing household size may require greater number of dwellings to accommodate

same number of people, but this trend is not evident in current housing stock where large detached

dwellings on large blocks continue to be the dominant dwelling type

- Current planning regulations limit height of residential buildings to two storeys and nine metres except

for central Byron Bay, where it increases to 11.5 metres

- Medium density residential zone recently introduced into 2014 LEP

- Secondary dwellings limited to 60m2 and cannot be used for tourism (brought in as part of Affordable

Housing SEP 2009, with expectation to deliver small, affordable housing primarily for holder residents

– took off once the requirement for infrastructure charges was removed)

- 88% of secondary dwellings in urban areas

- Some illegal holiday letting occurring

- Shortfall in high care and oversupply in low care dwellings for the elderly

- Undersupply in self-care units for seniors living

- Seniors housing development under consideration in Ewingsdale, with potential to yield 250

accommodation units

- Shire Development Control Plan 2014 encourages introduction of universal/adaptable design

principles and access and mobility for new construction and renovations

- Potential shortfall in dwellings negligible, little need to explore additional land release in next ten years

unless rural lifestyle housing regulations change to diminish anticipated capacity, significant economic

project arises, contributing to rapid growth, strategies for SEQ growth are ineffective and project

populations gravitate to Byron Shire

- Densification of existing urban areas required to provide diversity and make efficient use of developed

and serviced land, but need to make sure that dwellings are in walking distance of shops/services and

recreation, close to public transport and linked to pedestrian and cycle networks, existing urban

character is preserved, dwellings are well designed and landscaped (amenity) and encourage

transition to denser urban environment through consultation with community and developers

- Byron Bay has largest amount of residential zoned land (26%)

- Undeveloped land makes up approximately 10% of residential zoned land in shire and expected to

yield 1,800-2,000 additional dwellings

- Byron Bay: mix of single dwellings and medium density in and around centre, mixed use development

area, residential land susceptible to flooding and coastal hazards. In 2014, 55.3 ha rezoned for

residential with a predicted yield of 800-1,100 lots (West Byron). Bayshore Village site has potential

dwelling yield of 82 dwellings (1.88 ha zoned mixed use).

- Suffolk Park: residential areas and includes larger residential lots. Parts susceptible to flooding and

coastal hazards. Seacliffs subdivision estimated yield of 33 dwellings

- Brunswick Heads: medium density development in town centre, new LEP includes areas for mixed

uses. Suburb of Bayside Brunswick includes dual occupancy and single detached dwelling houses on

small blocks. Some land zoned for expansion of residential area to the south, with approved concept

plan approving up to 151 residential lots and 167 dwellings.

- Ocean Shores: low-medium density residential development, primarily detached dwellings with some

dual occupancies and townhouses. Area has bushfire risks and environmental attributes. Polepic

subdivision estimated remaining yield of 75 dwellings.

- South Golden Beach and North Ocean Shores: characterised by single storey dwellings and some

dual occupancies on larger lots. Infill development ongoing and development of new residential lots in

previously allocated areas. No new release areas contemplated for the locality.

- Mullumbimby: heritage character. Tallowood residential estate lot yield of approximately 300

(remaining stages).

- Bangalow: historical village. Approximately 200 lots available in new release residential zoned areas.

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- 2014 DCP and LEP specific urban housing issues as priority: reducing minimum land area for dual

occupancies, residential flat buildings and multi-dwelling housing, better delineation of low density and

medium density zoning, affordable housing and tourist accommodation (holiday letting strategy)

- Settlement strategies prepare over ten years ago and need review (meant for 10-20 year timeframe).

- Need to consider natural assets, scenic landscapes and culture, as well as constraints relating to

climate change and hazards, natural resources and environmental assets.

- Housing affordability affect diversity requirements

- Secondary Dwelling Strategy (in response to Affordable Housing SEP 2009)

- Far North Coast Regional Strategy 2006-2031 requires Byron to prepare a Local Growth Management

Strategy to meet dwelling target (2,600 additional by 2031), incorporating a land release staging

program, provide an appropriate mix of housing to reflecting changing needs and respond to ageing

population, no rural residential development in coastal area, rural residential development only in

accordance with growth management strategy

- Pathway to pursue amendments to LEP – planning proposal process, need Council support and

positive gateway determination from planning minister (can be seen as ad hoc if large scale)

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Affordable Housing Options Paper: Part A, 2009:

- Need to significantly diversify housing opportunities and stock in order to meet changing demographic

needs, including a strong increase in demand for smaller, more manageable dwellings for older

households

- Current and project shortfall in affordable housing (particularly rental) for low to moderate income

families in housing stress and need

- Far North Coast Regional Strategy predicts 2,600 additional dwellings by 2031

- Supply likely provided in four development scenarios. Bulk would need to be in existing vacant zoned

land and through urban consolidation. Small amount met through rezoning of greenfield and

brownfield sites (State government objects for 40% of housing to be multi unit dwellings in close

proximity to existing centres and 60% detached dwellings)

- Predict that 80% of net increase in demand will be one and two person households, majority of which

will be older households needing a mix of dwelling types, in proximity to services, transport and shops.

- Lesser number of smaller multi unit dwellings required for young families and singles.

- 20% of new demand will be households of three or more people (including share households).

- Increasing demand for age appropriate housing, including additional 203 high care places, 176 low

care places, 1,800 smaller manageable dwellings for older people and 460 self care units/independent

living units in age restricted developments by 2031.

- Shortfall in high care and slight oversupply in low care places, undersupply of self-care units for

seniors living

- 19 strategies identified to diversify housing stock and meet changing needs, as well as maintain and

increase housing affordability

1. Increase housing choice in well located areas close to transport, services and retail

(sustainability)

3. Include appropriate aims in the revised LEP for affordable housing and aged and disability

housing relating to increased housing choice in terms of type, tenure and price point. Include

related objectives and housing types in relevant zones under new LEP, including R2 low density

residential and R3 medium density residential zones and B2 local centre and B4 mixed use,

where residential development is permitted (particularly multi unit dwellings).

4. Through zoning and development controls, support development of more manageable and

smaller dwellings closer to transport, services and facilities in major urban centres and within

localities with suitable topography that allow for social and physical integration with surrounding

urban areas. This includes villas, dual occupancies, low-rise apartments, shop-top housing,

secondary dwellings and townhouses. Prioritise urban consolidation through redevelopment and

infill development that facilitates efficient use of existing services and facilities. Support for

identification of precincts for smaller more management dwellings and sites for age restricted

development, as well as larger sites to accommodate larger retirement villages and aged care

facilities (multi level care). Document identifies specific sites for aged care, as well as specific

sites for manufactured housing estates or caravan parks.

6. Developer incentives - use of developer incentives in selected localities, precincts and sites, for

example, density bonuses.

7. Implement developer incentives and benefits share through voluntary planning agreements.

9. Monitor outcomes of strategies.

10. Actively pursue best use of resources through development and funding partnerships.

17. Review DCP to protect amenity in precincts recommended for density bonuses.

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Byron Shire Council Community Strategic Plan 2022, 2012:

- 28,767 (estimate for 2009 - 32,126)

- Growth for the period 3.5% (previously 7.8%), regions growth 6.9%, state growth 4.4%

- Distribution: 27% rural; 20% Ocean Shores; 19% Byron Bay; 11% in Suffolk Park; 11% in

Mullumbimby; 6% in Brunswick Heads; and 6% in Bangalow.

- Median age: 41 years old

- 53% are married or de facto, 47% are single (13% are divorced)

- 4% have a need for disability assistance, 11% provided unpaid care to people with profound or severe

disabilities

- 10,713 households

- 66% are family households; 27% are lone households

- Over 81% live in houses (not flats or semi-detached)

- 76% own one or more cars

- Community concerns and priorities:

o Identify and target a sustainable population that is consistent with the community values.

o Sustainable development in the built environment:

a) Balance between increased affordable housing and sustainable development where the

coastline is managed and maintained for its current beauty.

b) Minimise over-development of sub-divisions in rural areas.

c) No avenue for next generation to settle in this Shire due to lack of available land and

increasing land prices.

o Management of development:

a) Fear of other local government development policies.

b) Urban development to incorporate best practice combination of high density and mixed

use facilities and green areas for community use, while still providing a sense of living in

a naturally beautiful ecosystem. Avoid over-development/commercial over-

development/urban land release/ugly development.

- Identified challenge: City to regional migration increasing expectations for services and infrastructure

that may not be able to be met

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Far North Coast Regional Strategy 2006-2031, 2006:

- Applies to the six local government areas of Ballina, Byron, Kyogle, Lismore, Richmond Valley and

Tweed.

- Future growth will be managed by preventing the spread of coastal development (protecting coastline

from excessive population pressure) and encouraging the development of non-coastal centres and

appropriately located housing

- Regional has high population growth rate and a median age expected to rise from 39 to 51 years by

2031, proportion aged 65 years or more expected to more than double by 2031, while the proportion

of young people is projected to decline to 14%, leaving just 54% of the population in the working age

group

- Region wide: extra 60,400 people, 51,000 new homes (2,600 in Byron) and 32,500 additional jobs

- Key drivers of growth: in-migration from the Sydney Greater Metropolitan Region and other areas of

NSW, population flow from South East Queensland and greater accessibility due to the upgrading of

the Pacific Highway.

- Region expected to be characterised by a series of contained centres, a coastal area protected from

inappropriate development, and growing towns and villages across the Region. A connected network

of towns and villages will provide a choice of well designed housing and associated lifestyles.

- Coastal towns such as Byron Bay, known as a national and international tourist destination, will have

retained their village character while still providing a gateway to many regional assets and attractions.

- Predict a greater demand for diversity in housing form to match the requirements of changing

household structures, particularly an increase in one and two person households.

- The population and housing challenges are to:

o manage the expected population growth in a way that retains village character, enhances a sense

of community, limits the spread of urban development, and minimises damage to environmental

values and rural production

o support the development of non-coastal centres provide a framework for the planning of new

infrastructure and facilities for the growing and ageing population

o provide choice in housing form and affordability in appropriate locations that responds to changing

demographics and the associated reduction in household occupancy rates

o ensure that new development reflects and enhances the character of the settlement in which it is

located and is based on best practice urban design principles.

- If current trends were to continue, around 75% of the Region’s future additional housing would be

located within coastal areas, leading to further pressure on existing infrastructure services, farmland

and sensitive coastal environments.

- The Regional Strategy will reduce the proportion of additional dwellings in the Coastal Area to 60% by

limiting future development to within the mapped Town and Village Growth Boundaries. This will

ensure a more even spread of population across the Region and assist in strengthening the growth of

non-coastal towns and centres. 35% of new housing will be in major regional centres of Tweed Heads,

Lismore and Ballina

- Establish green breaks between settlements and towns

- Encourage growth of non coastal towns and villages by identifying potential lands for new housing and

industry to boost local economies without compromising environmental values or quality of life.

- Require that any development proposals for greenfield sites west of the Coastal Area and outside of

the Town and Village Growth Boundary be subject to satisfying the Sustainability Criteria (see

Appendix 1)

- Environmental Assets and Rural Land on the Regional Strategy Map are protected from urban

development other than appropriately planned rural residential development

- Local environmental plans will not zone land within the Environmental Assets and Rural Land area to

permit urban purposes.

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- Local environmental plans will not rezone land within town supply catchments and significant

groundwater areas if this has the potential to reduce the quality and quantity of these assets.

- Rezoning of land for future development within the catchments of coastal lakes (as defined in

Schedule 1 of State Environmental Planning Policy No. 71—Coastal Protection) will consider the

recommendation of any Coastal Lake Sustainability Assessment which has been prepared.

- Subdivision and dwelling standard provisions in local environmental plans will reflect the objectives of

the relevant zone and the Regional Strategy.

- Coastal Zone Management Plan – consider this when proposing new development

- Future urban development is not located in areas of high risk from natural hazards including sea level

rise, coastal recession, rising water tables and flooding.

- Local environmental plans will make provision for adequate setbacks in areas at risk from coastal

erosion and/or ocean based inundation in accordance with Coastal Zone Management Plans. Until

these plans are made by the Minister for Natural Resources, councils cannot zone land or approve

new development or redevelopment in potential hazard areas, unless assessed within a risk

assessment framework adopted by the council.

- The major towns of Murwillumbah and Casino, and towns of Mullumbimby, Byron Bay and Kyogle

support the major regional centres. These communities provide a focus for some future urban

development within their service catchments.

- Region is characterised by mainly detached housing (71%) with less reliance on multi-unit dwellings

(22%) and other forms of accommodation (7%).

- Decreasing occupancy rates and changing demand from traditional single detached housing to multi-

unit dwelling types means that the provision of a variety of housing forms is needed in appropriate

locations.

- The Strategy reinforces and promotes increased housing choice by directing future urban growth to

appropriate locations across the Region. Higher density living is to be encouraged around the town

centres and areas of major employment.

- A defined hierarchy of centres achieving appropriate densities will provide a range of housing giving

choice in form and affordability. Sufficient land will be made available for employment purposes and

community facilities.

- Land will not be zoned for future urban investigation as it may create speculative land values and

unreasonable long term aspirations for future higher uses that may not be appropriate due to physical

constraints and/or infrastructure capabilities.

- Aim: 60% single dwellings and 40% multi-unit for the 51 000 proposed dwellings within the Town and

Village Growth Boundaries by 2031

- Where demonstrated by a local environmental study that a minor adjustment to the Town and Village

Growth Boundary is necessary so that new development is consistent with it, some minor variations of

the boundary may be considered.

- In determining the extent of any variation, consideration will be given to the efficient use of

infrastructure/services, avoidance of significant environmental constraints and natural resources, and

reinforcement of the regional settlement hierarchy. Any minor variation will be determined through a

joint analysis undertaken between the local council and the Department of Planning.

- Any future development proposals on greenfield sites in the non-coastal area located outside of the

Town and Village Growth Boundaries are subject to satisfying the Sustainability Criteria

- Local environmental plans will ensure that all new development reinforces existing urban and rural

centres, towns and villages.

- A land release staging program will be developed to ensure the orderly release of new housing.

- Councils will plan for a range of housing types of appropriate densities, location and suitability that are

capable of adapting and responding to the ageing of the population.

- New caravan parks and manufactured home estates, where there is any potential for permanent

accommodation to occur, should be located generally in urban areas.

- Local environmental plans cannot use the Transition Zone in the Standard Instrument (Local

Environmental Plans) Order 2006 to identify land for future urban investigation purposes.

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- Local environmental plans will maintain interurban breaks between existing and new settlements.

- No land in the Coastal Area will be released other than land identified within the Town and Village

Growth Boundary or within an approved rural residential release strategy.

- Councils will demonstrate through the Local Growth Management Strategy how dwelling targets

(Table 1) for each local government area will be met in local environmental plans.

- Planning for urban land must be integrated with the supply of relevant infrastructure and transport

provision.

- Future rural residential land will only be released in accordance with a Local Growth Management

Strategy agreed to by council and the Department of Planning, and consistent with the Settlement

Planning Guidelines.

- No new rural residential development will be permitted within the Coastal Area, other than

development already zoned or within an approved rural residential release strategy.

- Any development proposed for greenfield sites in the noncoastal area that is located outside of the

Town and Village Growth Boundary will be subject to satisfying the Sustainability Criteria.

- Potential for residential accommodation above commercial space, which can bring a higher level of

vibrancy to the centre - a greater number of people and business in the most active parts of a centre

without consuming additional land

- New buildings should be designed to maximise adaptability to meet changing demographic needs and

alternative future uses.

- A wide range of housing choices to provide for different needs and different incomes. Traditional

houses on their own block will be available along with smaller, lower maintenance homes, units and

terraces for older people and young singles or couples.

- Development on urban land in Tweed Heads, Kingscliff, Byron Bay and Ballina will not result in the

beach or adjoining open space being overshadowed before 3.00 p.m. midwinter (standard time) o

6.30 p.m. midsummer (daylight savings time). For other beaches or waterfront open space in the

Region, development will not result in overshadowing before 4.00 p.m. midwinter or 7.00 p.m.

midsummer (daylight saving time).

- Local environmental plans and development control plans (and subsequent land release

development) will be consistent with the Settlement Planning Guidelines, and the Government’s

Coastal Design Guidelines for NSW (2003) as applicable.

- Around 23,500 of new jobs will be linked to service and construction industries, with the remainder

export-driven employment. This anticipated employment growth translates to a need for about 156

hectares of additional industrial land and about 76 hectares of additional commercial land (a total of

232 hectares)

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Bangalow Settlement Strategy 2003, 2003:

- Key strategy proposals:

o Agricultural land to be protected as a valuable resource;

o No residential development to occur on flood prone land;

o No development to occur on land with slope greater than 20%;

o A staged release of identified development areas through the LEP and DCP process in

consultation with the community;

o Subdivision design, lot sizes, density, height, setbacks and built design to reflect a country village;

o Limiting the growth of the village and allowing garden flats and dual occupancy development

within the village boundary to strengthen the viability of the village;

o Permitting higher density development in the 3(a)(Business Zone) area and as designated in new

development areas;

o Permitting garden flats and dual occupancy development on suitably sized allotments to provide a

variety of housing, affordable accommodation and a manageable increase in density;

o Facilitation of affordable housing and aged housing;

- All possible areas for village expansion have been investigated. A staged release program is

proposed to manage future, limited residential area expansion:

o The first stage of the land release program is infill and further development of existing

2(a)(Residential Zone) land. It also includes the rezoning and subsequent development for

residential purposes of the free parts of the 1(d)(Investigation Zone) land south of Thomas Street

(Area 6). Included in the first stage will be an amendment to the planning scheme to permit the

development of land at the south east of the village (Area 4), but not for residential subdivision.

This land is suitable for alternative forms of development such as a caravan park, aged care

facilities, motel, manufactured homes or eco-village development. First stage land release will

also permit minor subdivisions of land off Corlis Close and Parrot Tree, subject to the relevant

issues being addressed.

o The second stage of the land release program will occur after stage one lands have been

substantially developed. A five-year lead-time is advisable. This allows time for rezoning and

other necessary amendments to planning controls, approval and construction of subdivisions and

provision of services, without unduly restricting the supply of land. The take-up and development

rate of residential land will inform decisions about further land release.

o The current population of Bangalow (2001 census) is approximately 1,200. Based on the

availability of residential land outlined in this Strategy, the population capacity of the village in

stage one of the land release program is approximately 1,800. The long-term population capacity,

including development of Areas 8 and 9, is approximately 2,100. Urban consolidation through

medium density developments and mixed residential/commercial developments will add to that

figure.

o A full structural review of the Strategy should occur every five years or so. That review may

identify the need to amend the land release program.

o 10 year planning horizon

o Demand for subdivided land and detached housing beyond this ten-year time horizon will no

longer be able to be met in Bangalow.

- A range of housing options is required to reflect the needs of the community. These shall be provided

in a manner that retains the character of the village. Areas have been identified where higher density

housing will not adversely impact on the character of the village. These include the village centre and

adjoining open space on the Thomas Street land. Garden flats and dual occupancy are proposed to

be permitted on suitably sized lots designed in accordance with the revised DCP.

- Outcome: Locate increased density in the village centre and allow garden flats consistent with

established character elements. Allow mixed use (commercial/residential) developments in the village

centre.

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- Bangalow’s historical emphasis on detached housing has resulted in a low density and corresponding

high consumption of land for urban purposes. This is an unsustainable land use pattern if the village is

to maintain its inherent and community-endorsed characteristics of a small footprint, defined village

boundaries, and keeping new development within walking distance of the village business centre.

- flood prone land should not be rezoned to permit residential development

- no further development involving filling or intensification of runoff (such as through increased hard

surface area) should be permitted on flood prone land unless adverse impacts on flooding can be

averted

- Limited tourist accommodation is available. The village would be well suited to the provision of bed &

breakfast accommodation or a small motel. A well-developed caravan park or camping facility suitably

located would provide an alternative style of accommodation. Land near the Old Pacific Highway

(Area 4) could be suited to this type of development.

- Motels and hostels should be concentrated in the village centre 3(a)(Business Zone) and within

walking distance (400 metres) of the village centre on the approach roads.

- Development in Bangalow generally is not higher than two storeys. New development in the main

street – a heritage precinct – must respect existing building heights. A two-storey height limit is

appropriate for the entire village.

- Need to recognise and facilitate different types of development:

o garden flat is proposed as a small dwelling with the following attributes:

they are ancillary to another (usually larger) dwelling;

they are about double garage size;

they may be attached (e.g. an ‘undercroft’ or ‘downstairs’ unit) to the “main” dwelling, or

detached (e.g. a converted garage); and,

pedestrian (but not always vehicle) access and private open space may be separate from

that of the other (or “main”) dwelling.

o Criteria for garden flats:

either attached to, or detached from, an approved dwelling house (whether existing or

proposed-and-not-yet-constructed);

only where there are no more than 2 dwellings on an allotment;

minimum lot size 800 m2;

maximum gross floor area of 60 m2 with up to 15 m2 deck/balcony;

must have direct access to a minimum of 30 m2 of useable open space, including any

deck/balcony;

car parking:

1 space for the main dwelling, except where primary access is off a lane in which

case 2 spaces are to be provided;

1 space for the garden flat;

A third space which MUST BE accessible to either;

Stack parking and parking in front yards is not acceptable.

- Need for greater controls over bnbs

- Existing definitions do not provide the flexibility required to address all possible forms of multi-unit

development. A new umbrella definition is required which covers residential flat buildings, villas,

townhouses, combinations of attached dual occupancy buildings and the like. This Strategy proposes

that medium density be permissible with consent in the 3(a)(Business Zone and within 400 metres (by

foot, not straight line) of that zone in existing residential zoned areas.

- Co-housing is a style of co-operative living providing the autonomy of private with many of the

resource advantages of community living. It is usually based on each household having freehold title

of their own site and a share in the community land and facilities, which include a common house with

kitchen and dining room. There are some rental or part rental co-housing communities. This form of

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development requires land where medium density development is permissible. When identifying

where to permit medium density development in Mullumbimby, consideration needs to be given to

allowing for this type of development.

- Mixed development refers to two or more forms of development in one building. Residential

development associated with commercial development has in the past been dealt with under the

different requirements of each defined use. The relationship of residential developments with adjoining

land requires focussed consideration. For example, developments in commercial areas can be built to

the boundary, without setbacks. This has the potential to adversely impact on the amenity of

residential dwellings. Integrated development controls for mixed uses are required.

- Housing of various densities could be provided on commercial zoned land if designed as a mixed-use

development. Cottage industries that preserve artisan skills could be nurtured through shop top

housing that creates a living/work space

- Residential development would be permitted in conjunction with a commercial use or home

employment. Shop-top housing could provide higher density development for the village.

- In relation to the 3(a)(Business Zone) a new LEP should consider the amount of land zoned for

commercial purposes. Investigate the introduction of a mixed-use zone that would facilitate

commercial uses attached to residential uses. Encourage mixed commercial/residential use of the

existing houses along Byron Street to add interest to the entrance to the village and retain the

character of this area. This is permissible at present, however the creation of a specific zone will draw

attention to this possibility and increase the likelihood of it occurring.

- Eco-villages here too.

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Mullumbimby Settlement Strategy 2003, 2003:

- The analysis of ecological and physical constraints has determined areas of land that are suitable for

future development for a range of uses. This analysis has shown that the expansion of Mullumbimby

is physically limited.

- This Strategy proposes no additional land for rezoning for residential settlement. Some key issues

need to be addressed before other land can be considered.

- The existing supply of zoned land for residential development is expected to yield approximately 280

lots. At the rate of growth experienced in the late 1990’s this represents only 5 to 7 years supply.

- Agricultural land be protected as a valuable resource through zoning controls;

- General Rural Zone) land be protected in the interest of retaining Mullumbimby’s rural outlook and to

maximise the amount of rural land available to be improved through developments in technology over

time;

- No development to occur on flood prone land;

- No development on land with slope greater than 20%;

- A staged release of identified development areas through the LEP and DCP process in consultation

with the community;

- Subdivision design, lot sizes and built design to reflect a country town and the opportunity to

experience a rural lifestyle;

- Permitting garden flats to provide additional variety of housing and affordable accommodation;

- This Strategy does not propose residential densities of the order suggested in the North Coast Urban

Planning Strategy of 15 dwellings per hectare. This is principally due to a desire to maintain the

character of the town, which historically has not included a high proportion of medium density

development. New release areas are located away from the centre of town. The average development

density of the town is quite low, at about 10 dwellings per hectare.

- Flood prone land and other land on the floodplain are not recommended for settlement but the

outcomes of a floodplain management plan may yield some development.

- The residential area has a uniform low scale, dominated by single storey detached dwelling houses on

a range of lot sizes. A small amount of medium density and dual occupancy development is scattered

throughout the town. The location and size of a number of churches adds to the character of the

residential area.

- A range of lifestyle opportunities, provided through a variety of lot sizes, housing density and types, is

required to meet the range of needs of existing and future residents.

- Stormwater and capacity for on-site drainage are issues of relevance to some areas but site-specific

assessment is required. In some instances the development of constrained land can be justified. For

example, a land parcel may be too small for effective agricultural production despite having a “prime

agricultural land” classification.

- Limit development on prime agricultural land, and protect agricultural lands from encroachment by

residential development as this may impact on agricultural activities. Do not expand the town into

large rural land parcels without natural boundaries. Maintain a clearly delineated edge to the village.

- No residential development to occur on flood prone land. No fill is to be placed on land subject to the 1

in 100 AEP level unless it can be clearly demonstrated that substantial benefits to the existing flood

situation will result. Uses other than residential, such as open space, could be managed on flood

prone land.

- No residential development on land with slopes greater than 20%.

- Any development proposals for land containing significant vegetation must include a design for

protection of this vegetation. Where planting is proposed local native plant species are to be used.

These requirements are to be included in a Development Control Plan for Mullumbimby.

- The Byron Rural Settlement Strategy unconstrained land in the Wilson’s Creek/Alidenes Road area,

and deferred rural settlement in this area pending the outcome of the Mullumbimby Settlement

Strategy. This was to allow assessment of the land for more intensive residential settlement.

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- The land is unconstrained and does not have agricultural attributes that warrant protection. It is

capable of residential development for a hamlet or small village, although there is no pressing need for

such development at this point in time.

- Due to the potential for village development in the longer term, this area should be excluded from rural

settlement in the next annual review of the Byron Rural Settlement Strategy. The potential for village

settlement will be determined as part of the 5 or 10 year review of this Strategy, depending on the

availability of residential land in Mullumbimby. Until that time, the area should remain as rural.

- Retain heritage character, two-storey height limit, support shop-top housing, allow mixed use

development that incorporates a shop front, address parking and community facilities through the

review of Section 94 plan, include guidelines in the review of Development Control Plan No. 11 -

Mullumbimby, retain contributory housing and allow commercial reuse where appropriate.

- Council’s Section 94 Plan is currently being reviewed. This will establish the level of contributions for

- new development in Mullumbimby and look at the facilities required that could be linked to these

funds. The use of Section 94 funds is limited by the need to establish a nexus between the collection

of funds and what the money is spent on.

- Outcome: Where section 94 funds are limited or cannot address an identified deficiency, investigate

partnerships with developers to negotiate better outcomes. Encourage discussion of subdivision

applications in the community to enable early identification of opportunities for co-operation.

- Assess the impact of additional residential development on the demand for parking and community

facilities in the town centre and amend Section 94 plans if necessary.

- There has historically been negligible demand for medium density residential development in

Mullumbimby. That could change if land supply is limited.

- There is presently about 30 hectares of land available for residential subdivision. At a rate of 40 lots

per year, after the sewerage infrastructure constraints have been addressed, Mullumbimby’s land

supply could be fully utilised within five to ten years.

- At present the market is perceived to prefer single dwelling houses, but changing demographics could

mean that the preference for smaller dwellings will increase. This is confirmed by the Department of

Housing, which is experiencing increasing demand for one and two bedroom accommodation.

- Medium density development in Mullumbimby can provide a greater variety of housing choice to

reflect the requirements of existing and future residents.

- The provision of garden flats will also meet some of the demand for rental housing in small dwellings.

- The central business area is currently a mixture of single and two-storey development. Three-storey

development would be incongruous and would not conform to the community’s vision for the town. A

two-storey height limit is recommended.

- Support garden flats

- Regulation of bnbs

- Co-housing: This form of development currently is only possible on land where medium density

development is permissible. Consideration needs to be given to allowing for this type of development

on a broader range of sites.

- An eco-village is a sustainable community, which cares for its people and the earth in either a rural or

an urban area. See paper “Eco-villages - A Sustainable Lifestyle” by David Kanaley, for further

information.

- This form of development requires the eco-village proposal to be developed in conjunction with a

rezoning of the land on which the village is proposed to be constructed.

- Outcome: Planning scheme to facilitate eco-village developments.

- Planning scheme and development controls for mixed residential/commercial developments.

- Future population growth is expected on existing zoned land and in residential infill developments

such as dual occupancy and garden flats.

- A five to ten year supply of zoned land exists at present. No rezoning of additional land is proposed at

this stage.

- Environmental attributes can change rapidly; future subdivisions should be restricted to a 5-year

supply of allotments to avoid long-term conflicts.

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- New areas will be considered through a new LEP and community consultation when the majority of

the approved lots have been purchased and developed. This will limit speculative demand and should

ensure an orderly staged release of land in sequence with the most economic provision of community

services and infrastructure and reasonable consistency with contemporary planning controls.

- The 2(a)(Residential Zone) needs to be reviewed to reflect the various outcomes proposed for the

residential areas. A single residential zone is no longer sufficient

- The current 3(a)(Business Zone) allows retail, commercial, tourist and professional services. This

diversity is appropriate and should be maintained. Development is currently allowed up to 9.5m or

three stories. Height limits need to reflect existing and desired future building heights. This Strategy

recommends that the height limit in the town centre should be maintained at two storeys.

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Brunswick Heads Settlement Strategy, 2004, 2004:

- Brunswick Heads is limited in the quantity and quality of land available for residential development.

This Strategy has reviewed the existing 2(a)(Residential Zone), taking into account the need to

provide for a range of housing options such as single dwellings, dual occupancy and medium density

development. The relationship of residential development with the river and adjoining parklands,

Tweed Street, South Beach Road, and the commercial area has been considered.

- It is important to retain streetscape and character. There is a need to provide guidelines and to review

controls for density, height and setback of development so that the existing character and scale of the

village is retained.

- There are major natural constraints to the growth of Brunswick Heads:

o the Brunswick River to the east and north

o the Nature Reserves to the west and south

o flood-prone land

o wetlands and coastal erosion hazard along the coastline

o acid sulfate soils

- The Pacific Highway bypass of Brunswick Heads also provides a clearly defined physical barrier to the

westward expansion of Brunswick Heads.

- The only area available for expansion is a southward extension of Bayside Brunswick, south of the

village.

- The Strategy renews the concept of “garden flats.” Otherwise known as granny flats or studio flats,

these small dwellings contribute to current housing needs by assisting in providing affordable housing,

by providing rental income, and expanding housing options for the increasing number of single

persons and low occupancy households.

- As a new form of development, garden flats should undergo a trial period, say three years. The

contribution of garden flats to the village, and their impacts, should then be reviewed.

- Another new form of development is the ‘dual purpose’ dwelling. In the town centre and South Beach

Road developers can elect to classify residential developments as ‘dual purpose’ dwellings which may

be used for either permanent or short term (tourist) accommodation. This gives flexibility to the owner

of each unit to choose. A trial period is proposed.

- Based on population growth rates and the availability of housing put forward by this Strategy, the

theoretical estimated population design capacity of approximately 3200 will be reached in 15 to 20

years.

- Garden flats are currently permissible as a form of dual occupancy but are not commonly applied for.

It is unlikely that garden flats will meet the likely demand for affordable housing in Brunswick Heads.

- This Strategy has determined that there is no more developable land in the Brunswick Heads village

catchment. Development and population growth will occur within the boundaries of existing zoned

land.

- In 2001 the Department of Urban Affairs and Planning issued guidelines for the development of urban

settlement strategies on the North Coast of New South Wales. These guidelines require Councils to

demonstrate a commitment to sustainable development principles.

- 1988 LEP - The LEP has one all-inclusive 2(a)(Residential Zone) which has for 13 years permitted

most forms of residential development throughout the residential areas of the Shire. Dwelling-houses,

dual occupancy, residential flat buildings, motels and hostels are permissible subject only to generic

Shire-wide development controls such as minimum lot size and setbacks.

- This broad-based permissibility system in Byron Shire as a whole has given rise to examples of

inappropriately located development and land use conflict issues. Residential flat buildings in some

instances have been built in areas of predominantly single dwelling-houses, with poor integration into

the streetscape. Conversely, some higher density development has not been located within proximity

to services such as shops and open space. Large commercial-scale bed and breakfast establishments

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in residential areas of Byron Bay have resulted in comments and claims of additional traffic, noise and

servicing requirements.

- 2002 DCP - Subdivision minimum lot size:

o 600 m2 for a general lot (note: this precludes subdivision of the ¼ acre (1012 m2) lots often found

in older subdivisions, including parts of Brunswick Heads, because 1200 m2 is required before

subdivision can occur);

o 650 m2 for corner bocks;

o 800 m2 for battleaxe blocks.

o Minimum lot size for dual occupancy (attached or detached) is 800 m2.

o Minimum lot size for medium density (3 or more units) is 1200 m2. There is also a requirement of

250 m2 of site area per dwelling.

- Development Control Plan No. 6 Bayside Brunswick: 1992 - The DCP stipulates that a minimum of

10% of allotments should be small lots (450 m2) and at least 10% of land should be allocated for

medium density housing. The DCP includes a subdivision concept plan.

- This Strategy does not propose residential densities of the order suggested in the North Coast Urban

Planning Strategy of 15 dwellings per hectare. This is principally due to the community’s desire to

maintain the character and sense of place of the village, which historically has not included a high

proportion of medium density development. The average development density of the village is quite

low, at about 10 dwellings per hectare.

- preference for full life-cycle housing, low maintenance housing, generally smaller dwellings, ease of

access.

- lower occupancy rates suggest a demand for smaller than average dwellings; garden flats.

- Council requires the floor levels of new residential buildings to be 500mm above the 1-in-100 year

flood level. Parts of Brunswick Heads, especially at the north of the village around the river, are flood

prone at the 1 in 100 year level.

- The investigation sites near the southern intersection with the Pacific Highway have some slopes

above 20%. This land is unsuitable for residential development.

- Outward expansion will be confined to the land in the 2(a)(Residential Zone) south of the village in the

Bayside Brunswick area.

- The Brunswick Heads village centre has a uniformity in building height, bulk and density. Many

developments in the commercial area are 2 storeys high and there are a few 3-storey buildings.

Residential development is also a mixture of single and 2 storey, with a very few 3 storey residential

flat buildings.

- There are approximately 22 hectares of land zoned 2(a)(Residential Zone) in one contiguous area at

Bayside Brunswick considered suitable for urban development.

- Land supply is therefore limited to the Bayside Brunswick area. This land will not be available until:

o sewerage treatment capacity is available;

o subdivision design and engineering plans have been approved by Council;

o subdivision works have been constructed.

- The undeveloped part of the Bayside Brunswick estate has the capacity for approximately 270 lots. At

recent growth rates this represents about 13 years of land supply.

- Any additional population will have to be either accommodated through redevelopment and upgrading

of existing housing stock, or will need to be accommodated in other towns and villages and possibly

outside of the Shire

- There are a considerable number of medium density developments – holiday flats and residential flat

buildings – in the village generally east of Tweed Street. Many are on allotments which would be

considered too small under current community expectations, and many are deficient in carparking

under current standards. Existing use rights would maintain the permissibility of medium density

development, but would also allow application for redevelopment to other non-conforming uses. This

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is an undesirable situation from the community’s viewpoint as it can result in unforeseen and

potentially undesirable types of development.

- Simply zoning these areas for medium density is not desired by the community as it may fuel

speculation leading to redevelopment of consolidated lots with developments of an unprecedented

and undesirable bulk.

- Recognition of existing use rights under local planning instruments to the actual quantum of the

existing development would provide certainty to landowners and to the community as the likely long

term form of development on these sites.

- No further development involving filling or a intensification of runoff should be permitted on floodprone

land;

- Hard surface area should not be increased on existing developed residential land;

- Car parking requirements for new developments are calculated in accordance with Council’s

Development Control Plan schedules. All parking required for residential development should be

provided on-site

- Residential developments in Brunswick Heads are generally a mix of single- and twostorey, with a few

three-storey buildings closer to the town centre. Community feedback suggests that a proliferation of

three-storey developments would seriously erode the low-key village atmosphere of the village.

- A two storey height limit will apply throughout Brunswick Heads including the 3(a)(Business Zone).

- The following points are indicative of possible development controls for garden flats, although this

remains to be confirmed through planning instruments:

- These small dwellings will be permissible throughout the residential areas, other than in areas

oriented towards medium density, motels and hostels.

- Garden flats accommodate additional population and should be levied section 94 contributions

accordingly.

- Brunswick Heads is more suited to smaller B & B’s of up to three guest rooms.

- It is proposed that B & B’s be split into size classes. Facilities with up to three guest rooms would be

permissible in the business area, two guest rooms in the residential area east of Tweed Street, and

only 1 guest room elsewhere.

- Existing definitions do not provide the flexibility required to address all possible forms of multi-unit

development.

- A new umbrella definition is required which covers residential flat buildings, villas, townhouses,

combinations of attached dual occupancy buildings and the like.

- The context of residential developments in a commercial area requires focussed consideration. For

example, developments in commercial areas can presently be built to the boundary, without setbacks.

This has the potential to adversely impact on the amenity of residential dwellings.

- This Strategy proposes to not differentiate between tourist and permanent residential accommodation

in the business area of Brunswick Heads. Development in this area is likely to be in the form of mixed

residential/commercial development.

- 3(a)(Business Zone) - 7.5m two-storey height limit.

o Residential development to be permitted only if commercial floorspace is provided on the whole of

the ground floor street frontage of developments;

o Residential development to be permitted in accordance with a unit-area formula. The intention is

to reduce the incentive to consolidate adjoining allotments and redevelop buildings of undesirable

bulk and scale;

o No differentiation between tourist and permanent residential accommodation.

- Development should be at lower densities on the outskirts of the village:

o single dwellings

o garden flats

o dual occupancy

o no medium density, motels or hostels

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- The current 2(t)(Tourist Area Zone) permits a range of developments and uses which are

inappropriate to the site or to Brunswick Heads in general. The land is not suited to a resort or tourist

unit style of development.

- In view of the potential for natural habitat to regenerate on this land, future subdivisions of this land

should be restricted to a 5 year supply of allotments

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Byron Bay and Suffolk Park Settlement Strategy 2002, 2002:

- The future development of Byron Bay is limited to the existing 2(a)(Residential Zone), the

3(a)(Business Zone) and the 7(f2)(Urban Coastal Lands Zone), and redevelopments within the

existing town area.

- Design guidelines should be developed to retain the character of older parts of the town, including the

streetscapes, building styles and relatively homogenous development patterns.

- The future development of Belongil Spit is being determined through the Coastline Management Plan

process and is likely to be fairly limited. Currently, Byron Local Environmental Plan 1988 prohibits dual

occupancy, residential flat buildings and a range of other developments in urban coastal areas

including Belongil.

- Suffolk Park is to remain a detached housing area, with no increases in density such as through dual

occupancy or medium density development.

- Residential development in Byron Bay and Suffolk Park is constrained by environmental features and

limited infrastructure capacities.

- There is strong demand for residential property but, even if the infrastructure constraints were

addressed, it is evident that the community does not support a demand-driven growth scenario at this

point in time.

- This Strategy does not identify additional land for new residential subdivisions.

- Urban consolidation is facilitated in the town centre and in dual occupancy and medium density

precincts.

- It is unlikely that all development opportunities will be acted on – some landowners are simply not

interested in residential development (particularly in commercial areas) or don’t have the resources to

develop their land.

- Byron Development Control Plan No. 1 - DCP No. 1 applies to the whole Shire. The relevant controls

under Byron DCP No. 1, for strategic purposes, are:

o Subdivision minimum lot size:

o 600 m2 for a general lot (note: this precludes subdivision of the ¼ acre (1012 m2) lots common in

the older parts of Byron Bay);

o 650 m2 for corner lots;

o 800 m2 for hatchet-shaped (“battleaxe”) lots.

o Minimum lot size for dual occupancy (“duplex”) whether physically attached or detached is 800

m2.

o Minimum lot size for medium density (3 or more units) is 1200 m2 and 250 m2 of site area per

dwelling.

- Planning controls to be reviewed to facilitate diversity in housing choice, particularly smaller dwellings

(1 & 2 bedroom) in medium density developments.

- Medium density development in a range of areas, particularly non-prime real estate areas. Facilitate

medium density and other development by the Department of Housing. Facilitate development of

manufactured home estate/s. Maintain minimum 30% permanent rental in current and future Council

caravan parks & encourage minimum 30% permanent occupancy in private parks. Investigate use of

LEP & DCP or other mechanisms to facilitate and retain Affordable Housing (as defined) whether

provided by the Department of Housing or private developers.

- The major physical constraints to growth in Byron Bay and Suffolk Park are:

o the severance of Byron Bay by the North Coast Railway line, and the lack of crossings of this line;

o inadequate capacity of the Byron Bay town centre to cater for through traffic;

o sewage treatment plant capacity;

o limited capacity of Byron Bay High School;

o stormwater drainage limitations;

o flooding and flood plain management;

o parking congestion in Byron Bay town centre;

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o flora and fauna impact;

o coastal erosion hazard;

o acid sulfate soils and peat;

o the lack of available job opportunities;

o the cost and availability of serviced residential land;

o physical/ecological constraints to expansion. undeveloped land parcels in Byron Bay and Suffolk

Park are constrained for residential development by environmental attributes, particularly:

o flooding at the 1% Annual Exceedence Probability (1-in-100 year) level;

o high risk potential acid sulfate soils;

o State Environmental Planning Policies 14 (Coastal Wetlands) and 26 (Littoral Rainforest);

o steep slopes (over 20%).

- catchment-based environmental repair and enhancement scheme, under which floodprone and other

constrained land unsuitable for residential development will be eventually revegetated.

- In the absence of a Floodplain Management Plan there should be no rezoning to higher order uses on

floodprone land. Consideration may be given to non-structural developments such as open space, car

parking, camping and caravan parks in accordance with relevant guidelines. Further investigation of

stormwater management measures is required, as detailed in the Byron Bay CBD Stormwater

Strategic Plan 1999.

- The future development of Byron Bay is restricted to limited infill within the existing town area. In

addition, the threat of coastal erosion is a significant consideration when considering development in

the coastal zone. Parts of the existing town are floodprone at the 1 in 100 level.

- The future development of Belongil Spit is being determined through the Coastline Management Plan

process and is likely to be fairly limited.

- The future development of Suffolk Park is limited to infill redevelopments and subdivisions. Outward

expansion of East Suffolk Park is restricted by the Broken Head Nature Reserve and Taylors Lake to

the south and by Environmental Protection zones to the north, south and west.

- The future development of Skinners Shoot has already been determined through Council’s Rural

Settlement Strategy. Skinner’s Shoot Road is a major constraint.

- This area has no future potential for either residential or rural residential Development. maintain and

enhance protection of the natural environment. Planning system to link development with

infrastructure capabilities.

- All residential development to provide car parking on-site.

- The capacity of sewerage infrastructure is a constraint to further development. No further development

should be permitted which places additional loading on the sewerage system until upgrading works

are completed. LEP to incorporate provisions to link development with effluent reuse capacities, as

detailed in the Byron Bay Effluent Management Strategy, such that there is no increase in the mass of

nutrient load from the STP to the Belongil catchment as measured at the outlet to the constructed

wetland.

- Stormwater requires management but should not be considered as a constraint to development in

Byron Bay town centre. Planning instruments to encourage management measures such as on-site

infiltration & water conservation. Council to investigate a Section 94 plan for town centre stormwater

infrastructure.

- Adopt a new “dual use” definition for residential development in central parts of Byron Bay. Limit

motels and hostels to town centre localities. No motels or hostels in Suffolk Park 3(a)(Business Zone).

- Further consultation to ascertain desirable design characteristics, including new buildings and

retention of older buildings. Obtain advice from a heritage adviser on design guidelines for character

precincts and buildings.: Adopt design guidelines in planning instruments for neighbourhoods in Byron

Bay and Suffolk Park. Two storey height limit for all development (commercial and residential). Design

guidelines to be developed.

- Garden flats will only be permissible in specified residential areas, including dual occupancy precincts

and character areas. Adopt a legal definition and development controls (including permissible

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localities) for garden flats. The garden flats concept should be reviewed after three years to gauge the

effectiveness of development controls, impacts on residential amenity, and whether they have proven

to be an effective response to housing supply issues.

- New definitions and permissible localities for bed and breakfast establishments based on (a) one

guest room, (b) up to three guest rooms and (c) up to five guest rooms. Note: this system should be

modified in the event that the legal definition of “bed and breakfast establishment” is amended to a

maximum of three guest rooms.

- Adopt new definitions for multi-dwelling development to cover all forms of urban residential

development of three or more dwellings on an allotment. Review development controls to permit on-

site management of residential flat buildings.

- Develop integrated controls for mixed commercial/residential developments.

- Adopt a new definition for “dual purpose” development, permissible in 3(a)(Business Zone) and other

areas close to beaches already providing tourist accommodation.

- The Byron Bay residential area will generally maintain a single detached dwelling urban form,

particularly in the delineated “character areas”. Some consolidation will occur in the residential area

south of the town centre through dual occupancy.

- Medium density development should be confined to precincts which have already developed in Shirley

Street, Lawson Street, Sommerset Street and Jonson Street.

- Residential densities should be limited to single detached dwelling-houses only on allotments

adjoining sensitive environments. This will minimise encroachment and buffer effects generally,

especially the predation of native fauna by domestic animals.

- Precincts for different types of residential development such as dwelling-houses, dual occupancy and

medium density.

- Develop design guidelines to maintain and enhance predominant character of built form and open

space/landscaping. Garden flats permissible in delineated character areas, subject to design

guidelines. Bed and breakfast establishments permissible in character areas subject to the dwelling

complying with local neighbourhood character. Amend exempt and complying development criteria

(e.g. dwelling extensions, recladding) to encourage consistency with neighbourhood character.

- Wategos Beach - Single dwelling houses only, no dual occupancy or medium density. No commercial

development (e.g. shops, hostels, motels, boarding houses). No B & B’s.

- Sunrise Beach - Single detached dwelling-houses; B & B’s (1 guest room). Medium density in existing

precincts.

- Suffolk Park - Single dwellings;. B & B’s of 1 guest room; no B & B’s, motels or hostels.

- Land currently zoned 2(a)(Residential Zone) is subject to environmental constraints, particularly

significant vegetation, which may decrease the lot yield.

- It can be assumed that there is pent-up demand for new subdivision areas due to the prevention of

subdivision and other development under the sewerage “moratorium” which has operated since late

1997.

- At current rates of subdivision the available zoned land in Suffolk Park – approximately 23 hectares –

will be consumed within five years of the sewerage infrastructure upgrade.

- Available zoned land in Byron Bay at the Sunrise Beach subdivision is exhausted.

- Future demand will be directed to residual vacant lots (of which there are approximately 200 in Byron

Bay and Suffolk Park combined) and to redevelopment areas, mainly the town centre.

- Garden flats: Garden flats are proposed in the area identified for general dual occupancy, on lots

between 600 and 800 m2 (whereas dual occupancy will be permissible on lots over 800 m2). There

are 210 lots between 600 and 800 m2. Some already have dual occupancy and have been discounted

from this calculation. Garden flats are also proposed in the “character areas” on lots greater than 800

m2. 150 lots are eligible for garden flats. An occupancy of 2 persons per garden flat is assumed.

- Development capacity within the existing zoned residential area – remaining subdivision capacity and

dual occupancy and medium density development.

- 3(a)(Business Zone): Residential development in the town centre will include tourist facilities, such as

motels, hostels and serviced apartments, or permanent residential dwellings.

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Byron Local Environmental Plan 2014

Areas identified as community title and multiple occupancy. Development controls are specified for these

areas that limit density, etc.

Zones in town centres:

- R2 Low density residential

- R3 Medium density residential

- R5 Large lot residential

- B1 Neighbourhood centre

- B2 Local centre

- B4 Mixed use

- RU5 Village

- SP3 Tourist

Height:

- Predominantly 9 metres, very limited 11.5 metres

Minimum lot size:

- Byron: number of areas of 600m2, some 200m

2 and some 1,000m

2

- Suffolk Park: number of lots 600m2, some 1 hectare

- Bangalow: number of areas of 600m2, some 200m

2 and some 300m

2

- Mullumbimby: number of areas of 600m2, some 200m

2 and some 8,000m

2

- South Gold Beach and Ocean Shores: number of areas of 600m2, some 200m

2 and some 1,000m

2

- Brunswick Heads: number of areas of 600m2, some 200m

2 and some 1,000m

2

R2 Low Density Residential

1 Objectives of zone

- To provide for the housing needs of the community within a low density residential environment.

- To enable other land uses that provide facilities or services to meet the day to day needs of residents.

2 Permitted without consent

Environmental protection works; Home-based child care; Home occupations

3 Permitted with consent

Attached dwellings; Bed and breakfast accommodation; Boarding houses; Business identification signs; Dual occupancies; Dwelling houses; Group homes; Health consulting rooms; Home industries; Multi dwelling housing; Neighbourhood shops; Roads; Seniors housing; Any other development not specified in item 2 or 4

4 Prohibited

Examples: Camping grounds; Car parks; Caravan parks; Commercial premises; Entertainment facilities; Function centres; Health services facilities; Home occupations (sex services); Public administration buildings; Recreation facilities (indoor); Recreation facilities (major); Recreation facilities (outdoor); Residential accommodation; Residential care facilities; Tourist and visitor accommodation;

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R3 Medium Density Residential

1 Objectives of zone

- To provide for the housing needs of the community within a medium density residential environment.

- To provide a variety of housing types within a medium density residential environment.

- To enable other land uses that provide facilities or services to meet the day to day needs of residents.

2 Permitted without consent

Environmental protection works; Home-based child care; Home occupations

3 Permitted with consent

Attached dwellings; Bed and breakfast accommodation; Boarding houses; Business identification signs; Child care centres; Community facilities; Group homes; Home industries; Multi dwelling housing; Neighbourhood shops; Places of public worship; Respite day care centres; Roads; Seniors housing; Serviced apartments; Any other development not specified in item 2 or 4

4 Prohibited

Examples - Camping grounds; Entertainment facilities; Home occupations (sex services); Recreation facilities (indoor); Recreation facilities (major); Recreation facilities (outdoor); Rural workers’ dwellings; Tourist and visitor accommodation

B1 Neighbourhood Centre

1 Objectives of zone

- To provide a range of small-scale retail, business and community uses that serve the needs of people

who live or work in the surrounding neighbourhood.

2 Permitted without consent

Environmental protection works; Home-based child care; Home occupations

3 Permitted with consent

Boarding houses; Business premises; Child care centres; Community facilities; Health consulting rooms; Home industries; Hostels; Hotel and motel accommodation; Medical centres; Neighbourhood shops; Respite day care centres; Roads; Shop top housing; Any other development not specified in item 2 or 4

4 Prohibited

Examples - Camping grounds; Caravan parks; Eco-tourist facilities; Health services facilities; Home occupations (sex services); Recreation facilities (indoor); Recreation facilities (major); Recreation facilities (outdoor); Residential accommodation; Tourist and visitor accommodation;

B2 Local Centre

1 Objectives of zone

- To provide a range of retail, business, entertainment and community uses that serve the needs of

people who live in, work in and visit the local area.

- To encourage employment opportunities in accessible locations.

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- To maximise public transport patronage and encourage walking and cycling.

- To encourage vibrant centres by allowing residential and tourist and visitor accommodation above

commercial premises.

2 Permitted without consent

Environmental protection works; Home-based child care; Home occupations

3 Permitted with consent

Boarding houses; Child care centres; Commercial premises; Community facilities; Educational establishments; Entertainment facilities; Function centres; Home industries; Hostels; Information and education facilities; Medical centres; Passenger transport facilities; Recreation facilities (indoor); Registered clubs; Respite day care centres; Restricted premises; Roads; Service stations; Shop top housing; Tourist and visitor accommodation; Any other development not specified in item 2 or 4

4 Prohibited

Examples - Camping grounds; Caravan parks; Home occupations (sex services); Recreation facilities (major); Residential accommodation;

B4 Mixed Use

1 Objectives of zone

- To provide a mixture of compatible land uses.

- To integrate suitable business, office, residential, retail and other development in accessible locations

so as to maximise public transport patronage and encourage walking and cycling.

2 Permitted without consent

Environmental protection works; Home-based child care; Home occupations

3 Permitted with consent

Bed and breakfast accommodation; Boarding houses; Child care centres; Commercial premises; Community facilities; Dual occupancies; Dwelling houses; Educational establishments; Entertainment facilities; Function centres; Hostels; Hotel or motel accommodation; Information and education facilities; Light industries; Medical centres; Multi dwelling housing; Passenger transport facilities; Recreation facilities (indoor); Registered clubs; Residential flat buildings; Respite day care centres; Restricted premises; Roads; Seniors housing; Shop top housing; Any other development not specified in item 2 or 4

4 Prohibited

Examples - Camping grounds; Caravan parks; Home occupations (sex services); Recreation facilities (major); Recreation facilities (outdoor); Residential accommodation;

SP3 Tourist

1 Objectives of zone

- To provide for a variety of tourist-oriented development and related uses.

- To encourage tourist development in designated areas to reduce impacts on residential amenity in

other zones.

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2 Permitted without consent

Environmental protection works; Home occupations

3 Permitted with consent

Amusement centres; Boat launching ramps; Boat sheds; Camping grounds; Caravan parks; Child care centres; Community facilities; Eco-tourist facilities; Entertainment facilities; Environmental facilities; Flood mitigation works; Food and drink premises; Function centres; Helipads; Information and education facilities; Kiosks; Recreation areas; Respite day care centres; Roads; Signage; Tourist and visitor accommodation

4 Prohibited

Any development not specified in item 2 or 3

4.1E Minimum lot sizes for dual occupancies, multi dwelling housing and residential flat buildings

(1) The objective of this clause is to achieve planned residential density in certain zones.

(2) Development consent may be granted to development on a lot in a zone shown in Column 2 of the table to this clause for a purpose shown in Column 1 of the table opposite that zone, if the area of the lot is equal to or greater than the area specified for that purpose and shown in Column 3 of the table.

Column 1 Column 2 Column 3

Dual occupancy (attached) Zone R3 Medium Density Residential

800 square metres

Dual occupancy (detached) Zone R2 Low Density Residential, Zone R3 Medium Density Residential

800 square metres

Multi dwelling housing Zone R2 Low Density Residential

1,000 square metres

Multi dwelling housing Zone R3 Medium Density Residential

800 square metres

Residential flat building Zone R3 Medium Density Residential

800 square metres

4.2B Maximum number of dwelling houses or dual occupancies on multiple occupancy or rural landsharing community developments

(1) The objectives of this clause are as follows: (a) to permit: (i) people to collectively own a single lot of land and use it as their principal place of residence, and (ii) the erection of multiple dwellings on the lot and the sharing of facilities and resources, and

(iii) the collective environmental repair and management of the lot, and

(iv) the pooling of resources to economically develop a wide range of communal rural living opportunities,

(b) to facilitate closer rural settlement in a clustered style in a manner that: (i) protects the environment, and (ii) does not create any unreasonable demand for the provision of services or any unreasonable demand for the uneconomic provision of services.

(2) This clause applies to land outlined by a thick green line on the Multiple Occupancy and Community Title Map.

(3) Development may be carried out with consent for the erection of more than one dwelling house or dual occupancy (attached) on such a lot provided that:

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(a) if there is a number shown for that lot on the Multiple Occupancy and Community Title Map—the total number of dwellings on the lot will not exceed the number marked for that lot on that Map, or (b) if there is no number shown for that lot on that Map—there will not be less than 3 dwellings, and not more than 1 dwelling for every 3 hectares, up to a maximum of 15 dwellings, on the lot.

(4) Development consent must not be granted under subclause (3) unless the consent authority is satisfied that: (a) there will be appropriate management measures in place that will ensure the protection of the landscape, biodiversity and rural setting of the land, and (b) the development is complementary to the rural and environmental attributes of the land and its surrounds.

residential accommodation means a building or place used predominantly as a place of residence, and includes any of the following:

(a) attached dwellings,

(b) boarding houses,

(c) dual occupancies,

(d) dwelling houses,

(e) group homes,

(f) hostels,

(g) multi dwelling housing,

(h) residential flat buildings,

(i) rural workers’ dwellings,

(j) secondary dwellings,

(k) semi-detached dwellings,

(l) seniors housing,

(m) shop top housing,

but does not include tourist and visitor accommodation or caravan parks.

These terms being further explained as follows:

attached dwelling means a building containing 3 or more dwellings, where: (a) each dwelling is attached

to another dwelling by a common wall, and (b) each of the dwellings is on its own lot of land, and (c) none

of the dwellings is located above any part of another dwelling.

boarding house means a building that: (a) is wholly or partly let in lodgings, and (b) provides lodgers

with a principal place of residence for 3 months or more, and (c) may have shared facilities, such as a

communal living room, bathroom, kitchen or laundry, and (d) has rooms, some or all of which may have

private kitchen and bathroom facilities, that accommodate one or more lodgers,

dual occupancy means a dual occupancy (attached) or a dual occupancy (detached).

dual occupancy (attached) means 2 dwellings on one lot of land that are attached to each other, but

does not include a secondary dwelling.

dual occupancy (detached) means 2 detached dwellings on one lot of land, but does not include a

secondary dwelling.

dwelling means a room or suite of rooms occupied or used or so constructed or adapted as to be capable

of being occupied or used as a separate domicile.

dwelling house means a building containing only one dwelling.

group home means a permanent group home or a transitional group home.

group home (permanent) or permanent group home means a dwelling: (a) that is occupied by persons

as a single household with or without paid supervision or care and whether or not those persons are

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related or payment for board and lodging is required, and (b) that is used to provide permanent

household accommodation for people with a disability or people who are socially disadvantaged,

but does not include development to which State Environmental Planning Policy (Housing for Seniors or

People with a Disability) 2004 applies.

group home (transitional) or transitional group home means a dwelling: (a) that is occupied by persons

as a single household with or without paid supervision or care and whether or not those persons are

related or payment for board and lodging is required, and (b) that is used to provide temporary

accommodation for the relief or rehabilitation of people with a disability or for drug or alcohol rehabilitation

purposes, or that is used to provide half-way accommodation for persons formerly living in institutions or

temporary accommodation comprising refuges for men, women or young people,

but does not include development to which State Environmental Planning Policy (Housing for Seniors or

People with a Disability) 2004 applies.

hostel means premises that are generally staffed by social workers or support providers and at which: (a)

residential accommodation is provided in dormitories, or on a single or shared basis, or by a combination

of them, and (b) cooking, dining, laundering, cleaning and other facilities are provided on a shared basis.

moveable dwelling means: (a) any tent, or any caravan or other van or other portable device (whether on

wheels or not), used for human habitation, or (b) a manufactured home, or (c) any conveyance, structure

or thing of a class or description prescribed by the regulations (under the Local Government Act 1993) for

the purposes of this definition.

multi dwelling housing means 3 or more dwellings (whether attached or detached) on one lot of land,

each with access at ground level, but does not include a residential flat building.

residential care facility means accommodation for seniors or people with a disability that includes: (a)

meals and cleaning services, and (b) personal care or nursing care, or both, and (c) appropriate staffing,

furniture, furnishings and equipment for the provision of that accommodation and care,

but does not include a dwelling, hostel, hospital or psychiatric facility.

Note. Residential care facilities are a type of seniors housing—see the definition of that term in this

Dictionary.

residential flat building means a building containing 3 or more dwellings, but does not include an

attached dwelling or multi dwelling housing.

semi-detached dwelling means a dwelling that is on its own lot of land and is attached to only one other

dwelling.

seniors housing means a building or place that is: (a) a residential care facility, or (b) a hostel within the

meaning of clause 12 of State Environmental Planning Policy (Housing for Seniors or People with a

Disability) 2004, or (c) a group of self-contained dwellings, or (d) a combination of any of the buildings or

places referred to in paragraphs (a)–(c),and that is, or is intended to be, used permanently for: (e) seniors

or people who have a disability, or (f) people who live in the same household with seniors or people who

have a disability, or (g) staff employed to assist in the administration of the building or place or in the

provision of services to persons living in the building or place,

but does not include a hospital.

rural worker’s dwelling means a building or place that is additional to a dwelling house on the same lot

and that is used predominantly as a place of residence by persons employed, whether on a long-term or

short-term basis, for the purpose of agriculture or a rural industry on that land.

shop top housing means one or more dwellings located above ground floor retail premises or business

premises.

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Byron Development Control Plan 2014:

Chapter D1 - Residential Accommodation in Urban, Village and Special Purpose Zones

The types of residential development to which this Chapter applies include the following:

- Attached dwellings

- Dual occupancies

- Dwelling houses

- Expanded houses

- Multi dwelling housing

- Residential flat buildings

- Secondary dwellings

- Semi-detached dwellings

- Shop top housing

- Studios

Provides criteria on building height planes, setbacks, screening, character and visual impact, fences, balconies, access, car parking, landscaping, private open space, siting, design, character, noise mitigation, access, mobility, density control

D1.10.1 Density Control

Objectives

To provide affordable shop top housing accommodation close to transport, employment and services.

Performance Criteria

The siting, design and density of the dwelling component of the development must be consistent with the character of the surrounding area and must provide a mix of dwelling sizes to accommodate different family profiles.

Prescriptive Measures

The density of the dwelling component of the development must not be greater than one (1) dwelling per 150 square metres of site area where no floor space ratio restriction applies under Byron LEP 2014.

A minimum of 25% of the floor space of the entire development, not including car parking, must be set aside for commercial/ retail purposes. All ground floor space fronting the street must be devoted to retail premises and/or business premises.

Chapter E5 - Certain Locations in Byron Bay and Ewingsdale

Focuses on development controls for Bayshore Village, Byron Central Hospital and North Byron Beach Resort

Chapter E5 identifies specific development controls for Bayshore Village, Byron Central Hospital and North Byron Beach Resort.

Chapter E1 - Suffolk Park

Dwelling(s) may be permitted within Zone B1 only if demonstrated to be directly associated with and subsidiary to retail, business, community or associated development within Zone B1. Shop top housing is Council’s preferred form of residential development within Zone B1.

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Chapter E1 identifies design criteria for development in Suffolk Park. This chapter states that dwellings may be permitted within the B1 Neighbourhood Centre Zone, only where directly associated with retail, business, community or other land use established in the zone. The preferred method of providing dwellings in this zone is through shop top housing.

Chapter E2 - Bangalow

To provide for a variety of residential development forms and densities, including innovative multi dwelling housing and other medium density forms which best utilise the town’s topography and maximises the use of services.

Bangalow urban release areas: To provide for a range of residential lot sizes that are responsive in terms of environmental constraints and will achieve affordable housing principles and improve housing choice to a broader population. Structure plans for sites provided (may need amending).

Chapter E2 provides design criteria for development within Bangalow. The purpose of this chapter is to encourage a range of residential development types and densities, including innovative multi dwelling housing and other medium density forms. This chapter also identifies requirements for the Bangalow urban release areas, with the objective being to provide for a range of residential lot sizes that are responsive to environmental constraints and improve housing choice for the broader population.

Chapter E3 - Mullumbimby

The existing subdivision pattern in Precincts 2 and 3 is dominated by long narrow lots often with houses located across two lots with large rear yards with laneway access. These properties provide opportunities for infill housing in the form of dual occupancy development, small lot subdivision and boundary adjustment or re-subdivision.

Chapter E3 identifies design criteria for development in Mullumbimby. It identifies opportunities for infill hosing, particularly in the form of dual occupancies, small lot subdivision and boundary realignments.

Chapter E4 - Brunswick Heads

The residential areas of Brunswick Heads contain a varied and compatible range of architectural styles, materials, landscapes and streetscapes. Housing comprises mainly low density, low rise single and attached dwellings with low-impact bulk and scale. New development is designed to respect the integrity and character of heritage items, consistent with Chapter C1 Non-Indigenous Heritage.

New residential development is consistent with the requirements of Chapter D1 Residential Development in Urban and Special Purpose Zones. Development is designed to enhance the low key, family-friendly, coastal village character, streetscape and scale of Brunswick Heads. s

Chapter E4 provides design criteria for development within Brunswick Heads. It states that new development is to be consistent with and enhance the existing character and scale of development within the town, being predominantly low density, low rise single and attached dwellings, with reduced bulk and scale.

Draft Short Term Holiday Accommodation Strategy (no date):

- It outlines draft planning controls to regulate short term holiday accommodation in Byron Shire and

provides details on the registration system, fees and charges (rates and registration fees) and

compliance action. In developing the Strategy it became apparent that existing Council controls for

other types of tourist and visitor accommodation such as Bed and Breakfast, Serviced Apartments and

Rural Tourist Accommodation were inequitable. Therefore, this Strategy also proposes amendments

to existing planning controls for other forms of tourist and visitor accommodation to improve equity.

- Three levels of assessment are proposed to regulate short term holiday accommodation.

1. Exempt: holiday homes are only available for rent in Australian School Holiday periods, for a total of less than 90 days in any calendar year.

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2. Complying: maximum of 3 bedrooms, and are rented for less than 90 days at a time in any calendar year

3. Development Application: 4 or more bedrooms, or for dwelling houses that cant satisfy the complying provisions and are rented for less than 90 days at a time in any calendar year

- To comply, holiday homes must meet all of the additional provisions stated under the relevant clauses.

These controls will apply to all owners/managers renting a property for short term holiday

accommodation.

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Attachment B Consultation Records

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Byron Shire Council

Housing Needs Report

Consultation Contacts and Questions List of consultation contacts

Consultation Contacts Locality

Real Estate

Real Estate Agent – Bangalow Bangalow

Real Estate Agent – Bangalow Bangalow

Real Estate Agent – Byron Bay Byron Bay

Real Estate Agent – Mullumbimby Mullumbimby

Developers/town planners

West Byron Urban Release Area - Developer Byron Bay

Bayview Land Development Pty Ltd Byron Bay

West Byron Urban Release Area – Town Planner Byron Bay

Planners North

RVI Planning Byron Bay

Anstey Homes

EDQ Throughout Queensland

Retirement housing

Cape Byron Estate Retirement Village Byron Bay

Feros Village Bangalow, Byron Bay

Affordability Projects

Haven Home Safe, Bendigo

University of NSW – Built Environment

The questions for each stakeholder group are included below for reference:

Real Estate Agents

RENTING/BUYING: What can you tell us about the preferences of people and trends

overall and specific groups in terms of:

­ Size of dwellings? Number of bedrooms? Land size?

­ House versus unit/townhouses?

­ Location (proximity to services, transport, coast, walkability, recreation areas)?

­ Mixed use centre or suburbia?

­ Sustainability (energy efficiency, building materials, walkability, ability to have a

vegie garden)?

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­ Specific groups:

­ Lower income workers.

­ One parent households.

­ Older people, older couples, older singles.

­ Young singles, young couples.

­ Families.

Who drives the types of new dwellings being offered on the market? Do you think the

preferences of purchasers or what the development industry chooses to offer?

Are there examples of housing options elsewhere that you would like to see developed in

the Byron Shire?

Do you think your clients would purchase smaller more affordable dwellings (whether

houses or units) that are well located, over larger houses?

Are there any issues that people don’t like about townhouses and units compared to

houses? Prompts: parking, privacy, noise and safety?

Do you think people seeking a tree change/sea change are having any impact on housing

price growth? Are these people seeking a different type of dwelling to locals?

Do you think houses and units available for holiday lets are having any impact on housing

availability and therefore on housing price growth? Are properties available for holiday

letting different types of dwellings to what locals are looking for?

We are particularly interested in affordable dwellings – Where are the affordable dwellings

located in the area you work in? How many bedrooms do they have? Are they houses or

units?

Has the growth in secondary dwellings contributed to offering more affordable rental stock,

or are these mainly used for other purposes?

Developers

Who are (who are you expecting) to be your primary customer? Are they owner occupier or

investor, are they young or old, are they singles, couples, groups of professionals, young

families, families with older children?

What do customers want in terms of dwelling size and dwelling type? How do you know

this?

Who drives the types of new dwellings being offered on the market? Do you think the

preferences of purchasers or what the development industry chooses to offer?

Are there examples of housing options elsewhere that you would like to see developed in

the Byron Shire?

What influence does finance play in influencing dwelling types? Is funding easier to obtain

for housing projects over units and townhouses?

Do you think purchasers want smaller, more affordable dwellings? (Understand what they

consider to be “smaller” – dwelling size; lot size; product…)

Do you think population ageing and the growth in older people living alone will impact the

types of dwellings in demand? Will it influence what you provide? Given this growing

market, how can we ensure these smaller, more affordable dwellings are available to this

market in the future? How do we make this happen? What are the barriers to this

happening?

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We are interested in providing quite specific detailed recommendations to Council about

how they can assist and encourage developers to deliver more affordable/more diverse

housing types. What recommendation would you give to Council?

Prompts:

­ The approval process? Impediments (regulatory; organizational; cost…)

­ Infrastructure provision and infrastructure charges?

­ Cost of fees and charges?

­ Risk?

­ Confidence in delivering something different?

­ Lower return?

­ Customer preferences?

Housing Providers, Social/Affordable Housing

Is there a need for additional community and social housing in the Byron Shire Council

area?

Where are the particular areas of need? What sort of household types are most in need?

What type of dwelling is mostly required?

Council is interested in developing strategies to encourage more diverse and affordable

housing. We’re aren’t so much interested in proving that there is a need or assessing or

quantifying the level of need, but more so in strategies to deliver better outcomes.

How can Byron Shire Council support your work in delivering more affordable, more

diverse housing types (without direct investment)?

Aged Care, Retirement Villages, Home Care

Is there unmet demand for retirement village units and residential aged care? Is there a

long waiting list for your facility/village?

Do you think that older people who receive home care services are living in homes that

meet their needs? Have the required features to make life easier – single storey, walk in

showers, bars etc.? Are they too big or too small? Are they isolated from neighbours?

Large yards for maintenance? What else?

How can home care services be delivered more efficiently and with a better level of care to

your clients in terms of dwelling types, locations, etc.?

Town Planners:

Who are the typical types of residents/applicants? Are they owner occupier or investor, are

they young or old, are they singles, couples, groups of professionals, young families,

families with older children?

What do applicants/residents want in terms of dwelling size and dwelling type?

Who drives the types of new dwellings being offered on the market? Do you think the

preferences of purchasers or what the development industry chooses to offer?

Do you think purchasers want smaller, more affordable dwellings? (Understand what they

consider to be “smaller” – dwelling size; lot size; product…)

Do you think residents would purchase smaller more affordable dwellings (whether houses

or units) that are well located, over larger houses?

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Do you think population ageing and the growth in older people living alone will impact the

types of dwellings in demand? Will it influence what developers provide? Given this

growing market, how can we ensure these smaller, more affordable dwellings are available

to this market in the future? How do we make this happen? What are the barriers to this

happening?

Do you think people seeking a tree change/sea change are having any impact on housing

price growth? Are these people seeking a different type of dwelling to locals?

Do you think houses and units available for holiday lets are having any impact on housing

availability and therefore on housing price growth? Are properties available for holiday

letting different types of dwellings to what locals are looking for?

We are particularly interested in affordable dwellings – Where are the affordable dwellings

located in the area and do you see many applications for these types of dwellings?

Has the growth in secondary dwellings contributed to offering more affordable rental stock,

or are these mainly used for other purposes?

Are there examples of housing options elsewhere that you think should be developed in the

Byron Shire?

We are interested in providing quite specific detailed recommendations to Council about

how they can assist and encourage developers to deliver more affordable/more diverse

housing types. What recommendation would you give to Council (including options for no

investment)?

Prompts:

- The approval process? Impediments (regulatory; organizational; cost…)

- Infrastructure provision and infrastructure charges?

- Cost of fees and charges?

- Risk?

- Confidence in delivering something different?

- Lower return?

- Customer preferences?

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Byron Shire Council

Housing Needs Report

Consultation Records

Note: The following comments pertain to the provisions of urban area housing. Other comments

were provided that relate to issues in the rural area and these will be taken on board as part of

the Rural Land Use Strategy process.

Real Estate Agents

Real Estate Agent – Bangalow 27 July 2015

Preferences/demand overall:

New blocks of land 600-800sqm are selling in Bangalow

Need more land for duplex and unit style even if it’s free standing (smaller separate

developments)

This would increase choice, would contribute to affordability if could be delivered to the

market at around $350,000-$450,000

Units at $450,000 would sell easily, especially if 3 bedroom, 2 bathroom

Getting this price depends on development costs though. Respondent was talking to

developer/town planner for Green Frog development at Bangalow and development fees

were around $35,000-40,000 per lot for Section 92 contributions

Walkability: well the three residential developments around at the moment: near the highway

(Blackwood Crescent), south of town (Charlotte Street) and western side of town (Sansom

Street). All walking distance to town if you wanted to do that.

Getting a cross section of people looking.

Retirees/older people: 55 years + are always around from Sydney and Melbourne and also

from Brisbane and Gold Coast.

Young couples and families still around.

The area not that affordable for low income people/single parents

Rents $400+ so not that easy for split families etc.

Opportunities for young people limited, hard to break in to home ownership

The 45+ age group will always be there.

Real Estate Agent – Bangalow 27 July 2015

In Bangalow:

There are some subdivisions of 40-50 lots, rezoned (early in the 2000s?), so now selling

stages 3 and 4.

Lots around 600-800sqm

Mostly 600sqm, some 700sqm, some 800sqm for dual occupancy.

People are looking for 800sqm lots so they can have that second cottage to rent out, income

stream, or for kids, older parents.

Granny flat on 500sqm still okay for that though.

800sqm lots are in demand, nowhere near enough. The price difference between a 600sqm

and 800sqm lot doesn’t make it viable for the developer to offer more 800sqm lots.

Developers are not doing the value add, not into construction, just want to sell the lots.

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Although lately one developer is doing some building.

Really untested demand for townhouses, units, but respondent thinks there is demand there.

Bangalow hasn’t had a history of medium density.

Even for people wanting a weekender. Could suit people from Brisbane spending a three

day weekend in the region. Less maintenance.

Medium density would be welcomed.

Bangalow Village Edge

They’ve put the medium density on the extreme western end. The furthest part of the estate

from centre of Bangalow.

Some infill development occurring but with the high costs of dwellings already, would be

difficult to make money given demolition, removing asbestos, redevelopment costs.

There are also natural constraints in Bangalow – flood, so some land not suitable for

development.

There is some interest in sustainability but not paramount, cost of land and building so high

people not wanting to spend more. Key question: Will that add to resale value?

Rental affordability is an issue.

Knows someone renting a garage as a one bedroom unit, not a legal dwelling. Small

dwellings: $300/week, $500/week for 2 bedroom dwellings.

Expensive for single people.

Also an issue with land chosen for subdivision – tends to be left over land - steep, south

facing, rocky.

Building costs therefore higher, effluent disposal is then an issue, cost of energy higher, etc.

compared to decent ground with sea breeze, sun for heating, run off.

Also, one estate is near the highway, so it’s noisy, had to put up noise barrier walls and

double glazed windows etc which adds to the cost of finished product.

Why not rezone land on western side of town away from highway.

Cost of housing in Byron Bay does encourage people to move up to Bangalow and create

demand in Bangalow.

Council seems to say that there isn’t demand for rural land but there is.

All lifestyle blocks. Not that much serious agriculture happening.

Seemed to be saying that smaller lots aren’t viable for agricultural use anyway. Lots of

smaller lifestyle blocks used for niche agriculture, but only macadamias seem to be viable

but then these cost more to get into anyway, so some land is used as agistment for cattle.

The cattle farmer brings the cows on looks after fencing etc.

Seemed to be saying that perhaps more residential subdivision of these lots would be okay

given not useful for agriculture anyway.

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Real Estate Agent – Byron Bay 30 July 2015

For purchase: people are looking for 4 bed, 2 bathroom, 2 garage, 600-650sqm, houses

most popular, people are looking for 3 bed, 2 bathroom, 2 garage units.

For renters: tourism town, so hospitality workers, workers under late 20s. Single bedrooms,

studios, bedrooms in houses.

As well as families looking for 3+ bedrooms.

Probably a 50/50 split between single hospitality workers and families in rental market.

Houses 3 bedroom from $600+/week, cheapest $450/week for 1-2 bedroom.

Double garages renting for $350/week.

Price range <$800,000 are local people

>$800,000 people from other areas, sea change, income in the local region wouldn’t support

someone buying in that price range so they’ve earned their money elsewhere.

Locations don’t really matter as most houses/units within 2 minutes drive of Byron Bay.

Low income workers looking for a single room rent

Single parent families might split one rental/sublet – one bedroom out to someone else to

cover the rent.

It’s a desirable location, a top tourist destination.

Around 1.2 million visitors a year, and a small resident population – 10,000?

Peak season, no vacancies anywhere.

“loved to death”

Second dwellings may not have really helped with demand, but have improved the way

people are living, people moving out of garages into secondary dwellings, so they have a

kitchen and bathroom. Contributed to wellbeing. Not great living in a garage.

The interview felt like the questions we have weren’t really getting anywhere, so asked what

respondent thinks council could do, what needs to change?

More residential development outside of Byron Bay. Need to keep the feel of Byron Bay, so

residential development in surrounding areas.

More development in Ewingsdale, Myocum, Broken Head, past Suffolk Park etc. Make it so

residents don’t need to come into Byron Bay for services/shops/etc.

Infrastructure isn’t coping in Byron Bay – only small number of residents to pay Council

rates. Local rates not enough to keep up with infrastructure needs.

Infrastructure needs in terms of highway, roads, parking, garbage, sewerage etc.

State government support needed to bring up to a level that the area can prosper – it is a big

tourist destination so maybe role for state government.

West Byron – 1,000 houses – so a lot of extra cars contributing.

Real Estate Agent – Mullumbimby 7 and 10 September 2015

We do need to do some things, not advocating for mass development.

Overly green Council, no future in this area without change.

Land and infrastructure charges are big issues, need to change to keep costs down.

They did try a share scheme between developers and council but that didn’t work.

Affordability is an issue – 2 bedroom, 1 bathroom, 50s shack, selling for $450,000, asbestos

nightmare.

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$400-450,000 will sell.

There is a land release in town – Tallowood Ridge – but too expensive $300,000 on website.

Some of that cost was Council fighting it, went to court, went to State government to resolve.

Talks with developers, 4-5 developers, and they say they wouldn’t even bother with

development in Byron Shire, Council is a pain to deal with.

Council insurance also an issue. For example, had to take local fire engineers advice over

fire experts from the developer, otherwise an insurance issue for Council. Proponent had

commissioned fire studies from two consultants.

Market – cross section of people looking and what people are looking for. Some looking for

larger properties, some people are downsizing, looking for classic timber home, timber floor,

high ceilings, reasonable size block – not small blocks.

New dwellings at Tallowood Estate, slightly larger blocks sell, smaller lots to keep costs

down don’t sell as well, bit further than walking distance away from town. Closer to town

would be good.

Council need to encourage developers into town, developers end up going to the State

Council is inefficient and incompetent.

Residents end up selling homes that don’t have approval for bits and pieces because takes

too long. 6 months to get anything through.

Council a major part of the problem

Land is expensive, end up building brick and tile as cheaper, not conducive to climate, need

insulation etc. End up building cheap project homes.

Exorbitant Council costs.

Three issues:

- Infrastructure costs

- Length of time to approve

- Holding costs for developers

Tallowood – exactly what happened.

Sewerage system, neighbors’ objecting, reasonable access to sewer, proposing to upgrade

sewerage plant at the same time. Length of time to do make a decision.

Four years to change zoning.

Council is the problem and always has been.

Green Council and that’s okay. Needs to be balanced. Need to release land over time.

Need some land to be rezoned: Keep 1B Rural protection zone, but look at rezoning some

1A, or allow to small acreage.

Council is missing out on revenue if charges high discouraging development.

Mullumbimby could grow, needs more infrastructure, facilities, services – police station, bus

service – fundamental things. Understand that costs money, but development through

infrastructure charges and rates can contribute.

We don’t want high rise, industrial, we don’t want estates of townhouses.

Units/Townhouses – suitable locations are available, Council said no to previous proposal.

Two level, walk up, 1 and 2 bedroom units, with garage and storage.

Motel recently converted to 1 bedroom loft style apartments, renting for $350/week, but

basic, no storage, carport not garage for storage.

Crisis in rental, 3 bedroom, 1 bathroom, brick and tile homes for $450/week to rent.

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People using rent assistance to support high rent costs.

Canefield land, on the main road in, Argyle Street, borders on river – some low lying, limited

agricultural value. Could be rezoned for housing.

Mullumbimby flood prone, flood zone, basin – but engineering, bio-retention basins, fill –

would allow. Cost passed on to developers which increases price.

Strong growth in need for aged care/disability care. Was a proposal for aged/disability care

facility, part of the land flood prone. Developers want to build these things but discouraged

by Council.

Agree with the green principles, but sustainable development. Amenity as entering town also

important. Don’t want rows of townhouses, or small lots as you enter town, would ruin the

town.

Other councils can do it. Ballina, Tweed, Gold Coast faster at decision making.

Developers

West Byron - Developer 5 August 2015

Still in development stages

Has been rezoned

DA in stages. First stage is in now, which is all the shared infrastructure and earthworks.

Second stage will be each individual owner putting in next stage of developments.

There are five land owners, individuals, companies and families.

Stuart is the Development Manager – used to be a town planner, now own business helping

manage development from purchase all the way through to market strategy etc.

Who will buy? Promoting the idea to owners that the first month should be for local market

only, give long term renters etc an opportunity to buy a block, before goes on the market to

others.

450sqm blocks might be affordable for local single mothers etc. so would be good to give

them an opportunity

Worked out on 450sqm in R2 and 200sqm in R3 but won’t be that in the end.

There will be a range from 450-550sqm, 550-650sqm, 650-800sqm.

800sqm wealthy

Investors? Would rather see younger people buy them, 450sqm blocks might see that

happen if on the market for around $290,000.

Older people? Trying to suggest to owners that some should be available as senior

designed housing. Accessible. According to NSW Senior Living SEP, reduced garden,

smaller dwellings. Older people looking for 300-350sqm block, 2.5-3bed format.

Project home builders. They take around 30% of the profit. Simple designed homes,

designed to be $800-900/sqm. Designed to maximise profit.

Limit should remain at 2 storeys, in keeping with Byron Bay style.

Wants a diversity of building styles at West Byron, some diversity of lots, trying to think

strategically about lots sizes with owners, to influence housing product.

There is B1 Commercial Neighbourhood zoned land, so expecting café, bars, restaurant,

groceries, newsagent etc, All of that would be two storey as well.

There is industrial land as well, so opportunity for jobs and employment, and help with

diversity of economy.

Community response? They hate their guts, 30 years and limited development which has

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pushed up house prices to median of $950,000. Some support amongst older generation 50-

60 years who’ve been in Byron Bay for a while, because they want families to be able to live

in the town.

Byron Bay has reached its development potential. It is a high demand location along with

Ballina and Brunswick Head, but there are opportunities in the townships and hinterland.

Byron Bay has reached development potential because? West Byron has been ready for

development since 1988, and still not delivered.

Time it takes for DAs to be processed is nightmare, but not Byron specific, across NSW.

Culture of council is an issue, every four years a new culture, green council going in next.

Too slow – partially due to the Council making all decisions who have no experience, rather

than leaving it to staff. Council tends to crush development down.

Land is so expensive, developers make money on the buy, not on the sell. So it’s about

buying cheaper land, holding it, then having the capital investment to get it to market.

Risks are high in Byron Shire for developers. Financiers asking about sovereign risk.

Related to Shire Council – delays in getting it approved, appeals going to court, occurring

ongoing costs. There are building contractors to build, so mainly about council, state

agencies also slow.

Infrastructure contributions around $42,000/lot.

Infill development? Infrastructure, sewer, stormwater, 60-70 years old in Byron, double

population will require infrastructure investment. Developers won’t pay it.

Supports the idea of smaller blocks close to shops/services. Talking to site owners about it.

People happier with smaller blocks because they can work to shops etc. socialize.

We’re so affluent, want to buy everything and put it in our backyards, do families really need

a theatre room. Would prefer to go out and engage with the community.

Same with older people. Retirement villages or just appropriate dwellings in residential

estates. When older don’t won’t to be stuck with a bunch of old people, wants to engage with

young people, see children playing in the park etc.

So that a fairly big cultural change required? There is a market for that type of thing, just

whether lots/houses are built that way. Owners need to think three steps ahead when

releasing lots and lot sizes, thinking about diversity of house styles, and types, older people,

smaller blocks close to centre, what to do with corner blocks because they have some

additional options – 2 up, 3 down but look like large house.

What happens with first release affects perceptions and success of next release of lots.

Need a collaborative approach. Council needs regular forums between developers and

Council.

One of the detractors of the West Byron development has a pile of money, and did a

subdivision with lots selling for $500,000.

It’s not about the current population, it’s about the future population. Not locking up land,

give people opportunity to get and buy a property.

Bayview Land Development Pty Ltd 12 August 2015

Industrial, beachfront urban subdivision

20 years in the Byron Shire Council area

Why are the way they are?

Overriding effort – very green Council, 3 terms, 9 years,

General policy

Repeatedly minimum expansion and development

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Last settler syndrome

Legacy Councillors – how did they do this? LEP, Constraints mapping “bogus”, sensitive

environment – coastal, environment, habitat, bushfire, agriculture.

New Council inherited debt, infrastructure, major assets for treatment

Very tight urban footprint – limiting land supply

Bangalow, Mullumbimby, Byron Bay development – cease all development that would add

any load to sewerage works, 10-12 years

Unlawful caretakers residents in Byron industry

On site sewerage treatments works

2008 – Mullumbimby still has capacity in sewerage, 100+ initial lots Bayview

Ocean Shore – own separate sewerage plant.

Priority List

Deferred matters of the LEP

Standard LEP (General LEP for all)

EI Environmental zone (natural parks only)

Wetland, coastal, koala habitat, scenic escarpment, landslide, flood prone, habitat, -

attempted to include in other “E” zones

State saying no?

Other E zones are called “deferred matter” (“DM”) quarantined from the scheme, revert to

previous 1988 LEP rights

Broad “rural” zone resolve that

Proposed E2 high conservation – do nothing

Rezoning proposal – Tallowood Ridge, just about all used up, “only show in town”

Rural land LEP, R5 8,000m2 minimum lot size

Road infrastructure exists but not utilized

Old zone IC2 2000sqm too small

1 acre minimum to treat on-site sewerage, house, pool

Concessional lots subdivision – family subdivision - Instead call it rural subdivision

Bottom price for urban lot - $400,000 Byron, $380,000 Mullumbimby, $380-400,000

Brunswick Heads, $300-320,000 Ocean Shore, $325,000 Bangalow

Myocum vast area 100 acre parcels, not farming, running cattle, avoid land tax and extra $

Inland will be affordable

Mullumbimby – goes under water in extreme flood, Brunswick River goes through town.

Tallowood – edge of the floodplain, 1% event, 0.5 site.

Development everything outside flood prone

Byron

Other development – urban

Infrastructure charges – access/infrastructure roads

Expensive

15-25%

Not a disincentive to developers

NSW Public Works subsidised, water and sewerage treatment works, s90 legislation,

determine own development contributions

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Aging infrastructure, no money, high development contributions?!?!

DCP – limit the number of homes

Proposed bypass – “Furfy” of no value, divert the traffic

West Byron – max yield, max price!

What’s the alternative?

Zone development and bring a percentage of stock at a set price…

Lower - standards for/measure what is affordable

Lower - affordable housing panel.

Climate change impacts – major impact on infrastructure expenses and also the impact on

existing land and future residential.

Ewingsdale – perfect for expansion of Byron Bay community

Community pressure from Environmental Progress Association.

650-850sqm residential lots

Council connect

Now 8,000sqm lots

Bottom end, proper roundabout, Coney Lane expansion.

400sqm – can’t fit a Metricon home

No buyers – product versus lifestyle – 800sqm for duplex, 2 detached dwellings,

450sqm slow sales

Ocean Shores

Sewerage plant all ticked, water okay, roads..

Balanced Systems 11 August 2015

Housing Products:

Wide range of applicants

In the urban and rural areas, primarily locals doing granny flats and dual occupancies

Also assists with increased settlement development – there is a lack of land supply for this

development in urban areas (difficult market)

Assisting with West Byron development and exploring different housing products:

- Huge demand for one and two bedroom units/houses

- Working on new product, being 200m2 blocks with individual homes (high sustainability

housing)

Multiple occupancies and eco hamlets are also common in Byron

- The multiple occupancy trend allows for family farm situation

- Allows multiple generations to live on a farm, often increases productivity of farms

- Satisfies housing supply for locals

- State Policy 15 allows for this situation on most rural land

- Byron Shire Council limited it to 60 properties and specified those permitted to do this,

which have now all been developed

- This is no longer an option and needs to be reviewed

- Community title in rural areas is also another option, similar in physical form to multiple

occupancies

Council have not done housing strategies within recent years, which has resulted in a lot of

illegal housing that is not regulated

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Land supply is a real issue (biggest issue) and is pushing housing prices up

Council removal of need for infrastructure contributions for granny flats has been very

successful in encouraging this housing product, but there has a been a big price to pay for

rate payers. Understand that this is under review at the moment and suggest that a happy

medium needs to be reached to reduce impacts on rate payers

The starved land supply in Byron over the past 20 years has resulted in Byron missing out

on two decades of housing evolution.

Developers are not familiar with new products (build what they know) and locals and

developers alike are stuck in a 20 year old concept of developing. They are not aware of

new models that would suit Byron

New LEP has a minimum lot size of 600m2, seen as a small lot. This is an example of Byron

missing out on housing evolution over time.

Height restrictions are another example of missing out on the housing evolution. Need to

discuss and go out and see what works well in Byron and be consistent in approach instead

of changing it all the time.

Housing Demand and Prices:

Small households not being catered for

Huge demand for one and two bedroom products, as a result of large population over 50 and

between 18 and 30

Very common for people to buy houses and split them into two or three illegal flats

A lot of people would be happier with smaller lots, i.e. 200m2 lots, housing principals of wider

verges, high quality landscaping, more on street parking, to improve attractiveness

If this was raised at a public meeting, unlikely to be supported. This is because the people

who protest these ideas are those with large houses and land that are not in need of

affordable housing products

Illegal landlords largely driving demand for housing products (split houses) and Council

needs to acknowledge this

The housing crisis is so acute because of people coming in and letting dwellings that are

then not available for locals

Issue is compounded, as Council is both starving land supply and ignoring illegal letting

Issue of people buying large farms, building trophy houses and ceasing farming activities,

which is affecting land availability

Secondary dwellings are meeting needs for affordable housing in some locations, whilst

being used mainly for holiday letting in others (2/10 secondary dwellings in Ocean Shores

and Mullumbimby used for holiday letting, opposite situation in Byron, mix in Bangelow)

Aged Housing:

Most over 50’s want to live together and do not want to live in conventional aged housing

models

Crafted ‘intentional neighbourhoods’ model:

- Group buys a super lot (capable of 15 standard lots) that is accessible and serviced

- Together with a designer, contract to design and build the types of housing they want,

speaking in the language of bedrooms and having discount by using one builder and

developer

- This is a situation where the community becomes the developer, producing purpose

built homes, where they can live with the people they want to live with and in the

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location they want

- Often have theme that is the focus, i.e. yoga, so they build a yoga study as part of the

development

Tree/Sea Changers:

Having a huge impact on house prices

Recommendations:

Need to remedy starved land supply – if land was available, more housing would be

provided

Lack of evolution in housing products and so Council needs to coach developers on product

types

Inherent sustainable development focus

Reduce lot sizes in some areas – particularly in existing rural residential areas

- Estates on Lagoon Drive and Lance Drive are examples of estates where yield could

easily be doubled

- Key issue in Byron is the NIMBY attitude towards subdividing

- Need to go to an estate, consult with owners, run tours and presentations and say that

you will only proceed with the planning controls to allow subdivision if community is in

favour

Need to deal with planning legacies with the community – they need to be brought on side

and consultation is the best opportunity to deal with a range of cross-issues

Planners North 4 August 2015

Application Types:

Mostly small scale developments in terms of the number of dwellings being applied for

Typically secondary dwellings, dual occupancies, dwelling houses and units

90% of applications for small scale developments, a six unit development application is

considered a big application

Predominantly two storey products, with two or three bedrooms per unit

Live/work development currently working on in Bayshore Drive (a number of these exist but

are unlawful)

Pretty standard building designs, nothing pushing the boundaries

Applicant Details:

Mainly mum and dad clients

GFC eliminated a lot of serious developers in the area, with very few left

A few cashed up miners who are able to develop with little to no support from the banks are

also playing in this field

Drivers of Dwelling Types:

Real estate agents giving advice to mum and dad clients above improving value of land and

sale prospects

Know products that will sell, easy approval, don’t push designs too far, don’t believe that

development in other areas responding to demographics (smaller units, higher density) will

work in Byron - ‘not for us’

Demand:

Demand in the extremes: there is a demand for large houses (mansions) in good locations

for wealthy people and there is a large demand at the end of the spectrum for smaller

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housing products that allow people to utilize the benefits of the location (it is not about the

dwelling, more about the location)

A lot of people are living in substandard dwellings because they like the location but cannot

afford to purchase a dwelling that meets basic living standards

Effects of Ageing Population on Dwelling Demand and Products

Secondary dwellings and dual occupancies provide some accommodation for this

There is a lot of good stock in Byron, in terms of large amounts of land, which is wasted, as it

is owned and occupied by older residents that are not interested in developing as it is too

hard. There is a lot of underutilized floor space in great areas because of this.

There needs to be a process where older residents are assisted to develop or allowed to

rent out space within their house/property, without being punished for it or being subject to a

process that is too hard, so that they can more efficiently use the space that they have.

Effects of Tree/Sea Changers on Housing Prices

Minimal effect. Sea changers are not that common in Byron and only result in modest growth

to house prices. They are having a much larger impact in other areas in NSW such as Port

Macquarie.

Impacts of Holiday Letting on Housing Availability

Having a large impact on amenity and availability of housing, it is like a plague

Same product as permanent residential is being sort

Whole range of price markets being sort after, same as residential; both really expensive

large properties down to renting out someone’s garage

Contribution of Secondary Dwellings to Affordable Rental Stock

Large impact on housing affordability

Council contributions to encouraging the establishment of secondary dwellings has been too

good in some ways

Impression is that Council want to pull back on facilitating this as much in the future

Recommendations for More Diverse/Affordable Housing Products

Agrees with all of the prompts (costs, easier approval process, etc.) but these are pretty

standard

Byron is perfectly placed for a ‘funky’ manufactured home park

- People are able to own their dwelling but lease the land and pay a contribution to use

communal facilities

- At the moment, one builder will supply all of the products in a manufactured home

park. There is the opportunity in Byron for a range of wilder, ‘groovier’ homes to be set

up, such as shipping containers, yurts, etc.

- There are a lot of people living in bad situations at the moment and this would offer

them a fantastic function and opportunity

Barriers to manufacture home park model:

- Byron is viewed as being a traditionally hard place to get an approval (this is a

perception only)

- There is the opinion that if you ‘stick to the vanilla’ you will get an approval without any

issues

- Senior staff at Council and Councilors need to drive the process of letting the public

know what they will accept and put examples out there of innovative designs and

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products that would be supported

- Planning staff are nice, but they do not currently present as a group that get out there

and promote this ideal

RVI Planning 13 August 2015

Applicants/Developers

Both mum and dad and developers, depending on the types of dwellings

Mum and dads more single dwellings

Developers smaller scale multiple dwellings, not very common though (not a lot happening in

this space)

Most common developments single dwellings, secondary dwellings and dual occupancies

(granny flats)

Products in Demand

Changing at the moment

Five years ago would have said large homes, house and land packages

Now, seeing a change towards smaller homes (depending on the area in terms of demand

scale)

Seeing more granny flats and secondary dwellings happening

Large homes are still being built though

Most homes being built by occupiers, more custom built not a packaged product

No one seems to want to challenge the norm too much – small lot is taken to be 600m2, two

to three bedroom house is considered small

Few small studio products out there

Drivers

Smaller scale developers doing what they perceive the market wants, based on advice from

real estate agents and valuers, informed by what is selling at premium

Homes are driven by cashed up (full pockets) owners from Sydney or Melbourne that have

grand ideas of their ideal home

Impacts of Tree/Sea Changers

Increase in house prices

Before sewer moratorium, STP struggling to meet demand

Council used moratorium to stop new development that would increase load on sewerage

network – ‘shutting down Byron Bay’

House prices went up, families that have lived there a long time were able to sell their land to

sea/tree changers who had the cash and this has brought about large change in

demographics and socio-economics of the area

Impacts of Ageing Population

Should change the range of products on offer but whether or not it does is a good question

People may be forced into retirement homes

Not going to be a huge impact on Byron housing product (suspect)

Believes that most older people would prefer a smaller, more affordable dwelling so that they

can stay in their area, rather than moving to a retirement village

Believes that families should be building adaptable homes and should be encouraged to

build a literal granny flat so that their family can age in place and have family support close

by

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This is a good option that doesn’t seem to be utilized at the moment

Impacts of Holiday Letting on House Prices and Availability

Holiday letting is definitely driving house prices up

Knows of a developer from Melbourne buying old housing stock in Byron, pulling it down,

building three or four units and holiday letting it all

This is a product that would suit locals but is offer to holiday makers instead

Scattered throughout permanent residential areas

Availability and Uses of Secondary Dwellings

Mixture of permanent residential (renting) and holiday letting

Rental market is quite expensive in Byron, regardless of the product

Where smaller units are available, often a high number of people sharing them (not

uncommon for three bedroom house to have seven or eight people living in it)

Garages converted into bedrooms and rented out

Single rooms in dwellings being rented out

Holiday letting takes away some accommodation for locals, but the biggest issue is that

there is a constantly high demand outstripping supply

Social/Affordable Housing

Don’t really know of many, few run by the State

Has been involved in Habitat development (edge of industrial estate that encourages live

work scenario)

High number of people living and working in areas in industrial estates (questionable

legalities)

Big demand for those in the creative industries, young people running small businesses, to

operate out of their place of residents (too expensive to rent two places and often limited

space in home to run a business, so live/work areas very popular)

Recommendations

DCP needs to be amended to:

- Reduce minimum lot size

- Encourage and facilitate secondary dwellings

- Worth exploring idea of a precinct where you are not permitted to build a single

dwelling only – mandatory secondary dwelling as well

- Facilitate diversity

- Planning controls can only go so far and are limited by the market, but need to get out

of the way of the market for when it is ready

It is difficult to get applications through when they don’t tick the box

- The more we head towards a tick the box and templates system, the harder it is to get

different products through

- Anything that is different has a longer and slower ride through Council, largely because

it is different

- No one really seems to ask if it is different and better or different and worse (this

should affect the decision making process)

- The Habitat development took 5 years to be approved

Principle should be that if it is fundamentally a good development, get out of its way. The

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planning system at the moment is preventing this from happening.

Council need to look back to the Place Making planning system. This was a process where

different precincts were investigated and clear decisions were made about what

development was supported in these areas. This would then simplify the application process.

Anstey Homes 4 August 2015

Who are people buying? Variety of people, mostly owner occupiers, middle aged

couples/families, some young people but generally not first home buyers, professionals now

retirees (lots of money so can afford to buy home).

What are they buying? 3-4 bedroom, study, single story, 250sqm, 2 bathroom, double

garage. Main size of blocks: Tweed Shire 500-750sqm, but Byron Shire mostly larger rural

residential blocks. Less new lots being brought to market in Byron Shire.

Smaller lots/smaller dwellings? Some people looking to down size, for cheaper to build,

less maintenance etc. Some older people looking for smaller houses, but others are looking

to have room for extended family to stay.

What spec homes do you build? Mainly display homes, larger, fancier looking, larger

dwellings for resale value. Some duplex but depends on blocks of land.

How do you decide what to build? Maximum density allowed by Council, block size,

Council is restrictive, Byron hard to deal with compared to Tweed/Lismore. Why? Anti-

development, environmentally concerned/green, culture in Council, no multi-storey

development, trying to maintain quirkiness I suppose. Not enough land released, subdivision

restrictions (rules and regulation, environmental impacts, road blocks). Lismore Shire

Council more supportive of development – some people develop outside the Shire for that

reason.

Costs? Doesn’t think Council costs are more than other areas, not prohibitive.

More about process. Ballina – online, 50 days. Byron Bay – turnaround time is longer, a

year.

EDQ 14 August 2015

The trick to reducing house prices is the reduction in either land size or house size or

ultimately, both (two fundamentals)

Smallest housing product on offer at Fitzgibbon Chase is 45m2 (this is their smallest product

and probably won’t go this small again)

Also have 50-54m2 products on offer and have a display home this size currently

Common products are 120, 150, 180, 250 and 310m2 (larger products achieve 70-80% site

cover, single homes). These products roll out the door, particularly 250 and 310m2.

Laneways allow for more diverse products

Can only do what they do because of lot sizes

Density of 58 dwellings per hectare in some areas in Fitzgibbon, with a maximum height of

two storeys

Have prepared plans to show how smaller lots can be developed and still have room for

extras, such as sheds, caravans, etc.

It is important to have a good relationship with the builder, as this is often a first for them too.

Offer a product that is $221,000 where young people can buy close to public transport and in

their local area

ULDA focus on key workers – use of the NRAS scheme (income based and purchase price)

Housing guide is currently under review. Other guides show principles for development. Pre-

2012 affordable housing guide.

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Change thinking, trick is that these are buildings/apartments on the ground, with no

community title. Community title business model affects cash flow for builders so the

standard freehold works best. Body corporate fees also increase prices.

House prices are lower because the land size is lower.

Building small buildings is expensive.

Developments do not comply with the minimum lot size requirements under QDC. There is a

combination of legislation that allows EDQ to do what it does, in short timeframes (40

business days) and with their own set of rules.

Consideration needs to be given to engineering standards – placement of infrastructure,

road pavement widths, services. What is really required, rather than what is standard

practice. Makes a huge difference to the development potential of a site, particularly lot

widths.

Alternative service providers are another option – provide localized STP at lower cost, more

affordable, often for sites as small as 3,000m2.

EDQ runs self-certification process for engineers, reduces holding costs for development by

up to 6 months.

When offering diversity, the ‘slum’ tag for affordable housing disappears.

There is a difference between affordable and social housing and this needs to be made

really clear. Affordable housing fills the gap for those that don’t quality for social housing.

My Place was a ballot system where people that met certain criteria and were eligible were

selected for lots. Might help to ensure that investors who purchase these properties still rent

them out at affordable rates.

There is also a difference between affordable houses to purchase and to rent.

Market forces determine how much a house sells/rents for, depending on size of the product.

Urban Growth NSW – focus on Sydney and Newcastle. Was primarily traditional

development and then became involved in joint ventures. Would provide land for developers,

primarily in the outer regions of Sydney. Focus is now on Brownfield sites and higher density

development.

Byron need to identify their target market, in terms of income bands, demographics (key

workers, single people, elderly, etc.)

Byron also need a framework – what is the timing they are targeting? For EDQ, they are

required to have a planning framework in place within 12 months of an area being declared.

Planning schemes often have different timeframes and requirements and this might not be

possible. If Byron do not have the legislation to support this, need people to champion the

project and push things along. Need relaxation of lot sizes and setbacks.

Terminology needs to be changed – use the phrase diversity and innovation, rather than

affordability and ‘slums.’ It is all about the phrasing.

Aged care/retirement villages

Cape Byron Estate, Over 55s Estate 5 August 2015

66 units for 55+

Caretaker on site 9am-2pm, no nursing or any care provided, will assist with small tasks

such as changing lightbulbs, helping with air conditioning etc.

Some residents quite a bit older than 55, up to 94 years of age at the moment, can stay for

as long as they like as long as support services can meet their needs

Some local residents, often people retiring from Sydney, Melbourne, Brisbane, people with

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family in the area, one couple from Perth, travelled around, thought it would be good to retire

in Byron Bay.

Few rentals, but most are owner occupier, not many come up on the market.

Often only change hands when someone passes away, sometimes the children rent them

out, with a view to live their later in their life.

Affordable, selling for around $395,000, two bedroom duplex style, fairly large though.

There is a shop on the premises and well located

$800/quarter for management, plus Council rates.

Demand?

Yes, waiting list of 5-6 to buy and 5-6 to rent, real estate agents might have people on lists

too.

Why are they so popular? Affordability?

No, I don’t think affordability is the main driver

Peaceful, quiet location, hidden away, well located, walk to the beach.

The 55+ probably keeps a lid on the prices, if it was for anyone, could probably fetch an

additional $100,000.

People like being able to locked up, and head off overseas, also safe/more secure.

There are some other strata units in the area, but don’t think they are over 55s, so would

have more rentals, families, might be noisier etc.

These are normal strata, so can be financed with a normal bank loan too, not like a

retirement village (?)

Accessibility

They weren’t set up for home care, not accessible features

There is a service that will come assess accessibility features and install.

Smaller dwellings? Alternatives for older people?

People will take what they can get.

Some people with a big nice house in Sydney might not want to go into something smaller

Not a lot of similar offerings in the area

What can council do?

Incentives to build, but sometimes the developer will keep that extra profit for themselves

rather than offering final product at a discount

A developer could go in and build something like this, sell off the plan, just need a developer

who wants to do that.

Can’t expand this estate.

Land in the area is expensive, which makes it difficult to buy land, develop it, and bring it to

market at an affordable price.

Could go further out of town, advice there would be to offer a free mini bus

Being out of town, especially if they have to give up their license, will be isolating.

An estate owned, free mini bus into town twice a day would be required.

A heated pool is also important for older people – for physiotherapy and low impact exercise.

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The new hospital doesn’t have a heated pool so would be good to get a second heated pool

in the area.

The only heated pool is at this complex, and get requests and people from outside the estate

using the pool for physiotherapy sessions.

Feros Village 4 August 2015

Bangalow – higher care, 64 beds.

Byron Bay – smaller facility, 40 beds, mostly low care

Waiting lists, demand always fluctuating so hard to say, moderate demand for additional

places but not high.

Parliamentary Inquiry at the moment about requiring residential aged care facilities to

provide a 24 hour registered staff member.

24 hour nurse not currently provided at Byron Bay, but is provided at Bangalow.

Would mean that the service at Byron Bay would have to close because not financially

viable. “Wouldn’t be able to sustain service at Byron Bay.”

Similar situation to many other providers – it’s standalone, mostly low care provided, 50 beds

or less.

Prompted: Could Byron Bay centre expand to be able to afford a 24 hour nurse?

Would that be an option?

Land zoning means centre physically couldn’t expand. Some vacant land around, but

environmental zoning means physically expanding wouldn’t be possible.

Nursing positions already difficult to fill – around 100 days to fill an RN position. Do you

know why this is? Aged care in general, stigma, low care, not clinical setting, mostly social

interaction etc, means less desirable nursing role.

Is cost of accommodation an issue for staff?

Cost of accommodation always going to be an issue because of low pay, weekend work and

penalty rates are an issue too.

More of an issue in Byron Bay. In Byron Bay, some staff have left because difficulty finding

accommodation.

Accommodation not necessarily an issue with attracting more staff though, quite a bit of

interest for carers, but higher turnover.

Staff accommodation at Bungalow less of an issue, core of long term staff up there.

But many don’t live in the Byron Shire area - live in Lismore. Why? Not really sure, maybe

not accommodation related, but maybe because some do the course in Ballina – Certificate

of Aged Care, go to other areas for placements.

Home care – Would different dwellings or development patterns assist? Technology

would be the main improvement, video conferencing to do a check in with people. A lot of

kilometres involved.

Residents: Some residents from other areas, from Sydney, from Queensland, relocating to

be close to families. Why not have older parents living in secondary dwellings, is

availability of that housing an issue? Don’t know.

In Byron Bay, we do have some admissions from people living in cars/caravan parks.

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Their health deteriorates because of quality of living conditions.

Move into aged care to get general care. Home care would probably meet their care needs.

But living conditions contributed to needing to be in aged care.

Social and Affordable Housing Providers/Commentators:

Haven Home Safe 14 August 2015

Reason for Work:

Offer an integrated homelessness and housing program

One of the richest countries in the world, with such a large homeless population – it is

stupide and clearly the wrong use of our resources

Offers transition to housing, brings social benefits to the wider community, including stability

and reducing the generational cycle of homelessness

Range of Products:

Includes houses and units and everything in between

Depends on the location and what is available

In higher price areas, maximize footprint with units

In lower price areas, prefer building individual homes or smaller scale medium density

development

Have established over 1,000 homes in past five to six years

Mix 14 storey apartment buildings to individual homes

More and more one and two bedroom products, as private sector is saturated with three and

four bedroom products

One bedroom units are uneconomic, as it costs the same to build a two bedroom unit, where

you can house more people

Seen incredibly poorly designed one bedroom units in the inner city areas by the private

sector. Targeting student housing (suitable) but not suitable for people that need social

housing, as they spend a vast amount of time at home and need space to live. Smaller

spaces can contribute negatively to other issues being experienced by those needing social

housing, i.e. mental health issues. The balance between livable space and cost is important.

Funding Mechanisms:

Affordable rental housing needs subsidy on the way in, throughout the process and on the

way out

Private sector cannot meet demand in the bottom third of the income bracket (rental market)

Inputs are the same as any development, it is the output that differs. Rent is offered at a

suboptimal rate and Council need to realise that affordable housing providers need to be

treated differently to normal developers. Extra costs to develop these products cannot be

recouped though rental or house prices.

Subsidy at the beginning of a product comes from the State and Federal governments, up to

75% of costs. This can be given in the form of dollars, land or old housing products (for

renewal). The remainder of funds comes from own debt, resources or philanthropic

assistance.

Funding during the process is provided by Federal rent assistance for individual tenants.

Subsidy on the way out in the form of harvesting capital and turning this over, NRAS.

Believes that days of cash from the government are long gone and won’t be seen again in

our lifetime.

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State Housing Authority originally owned 5-6% of all housing stock in the rental market.

Recent years, this has fallen to 2-3%. This withdrawal from the market is the reason why

affordable rental housing is an issue. The re-targeting of allocations to cater for those most

in need means that the state are surreptitiously disadvantaging the rest of the population that

require some form of assistance but are not the most in need. NGOs are then required to

cater for this demand. The state needs to ease pressure on the private sector, not this

‘downshift of responsibility.’ This type of housing also compartmentalizes and concentrates

disadvantage. Good affordable housing provides a mix of tenure, type and demographics.

Recommendations:

No Council in Australia is capable of directly investing in this space

Reserves of land could be allocated to this type of housing

Need to support affordable housing in policy:

- Make concessions in terms of higher density, less parking spaces, lenience for

communal space

- More creative views towards development and registered non-government affordable

housing providers

- Reduced or no infrastructure contributions

- No rates

- Drop operating costs (development costs), give higher leverage to affordable housing

providers so that they can provide more services/developments

- Inclusionary zoning (precision and care needs to be applied)

- Need to establish these developments in appropriate locations. All for mixing up

development, but don’t put affordable housing in expensive locations where residents

cannot afford to use services or shop

Victorian ‘The Strategy for Housing Lower Income Earners, Victoria’ (2003/2004)

- Brilliant document

- Understood the difference between public and private and those in the middle

- Set up a framework and funding model for housing low income earners

- Did not have ongoing investment

Registered providers system means that the State cannot bully providers into establishing

certain products.

Innovative ideas depend on catchment/jurisdiction, weighting/tax system

US: local government gives land to public housing providers. Strong level of ownership over

homeless. In Portland, all sales tax from properties is put back into a funding pool for

affordable housing.

Canada: strong level of municipal housing (authorities are the providers).

UK: no longer municipal role, but there are massive companies over there operating in this

space. Enjoy a privileged.

Could transfer title to public housing providers to put in the pipeline for affordable housing,

create new products, jobs and economic stimulus. This would look bad in terms of budget,

as land over valued at present.

University of NSW 11 August 2015

Provision of Social Housing in NSW:

State government is responsible for about 80%

Community housing providers are responsible for remaining 20%

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Main providers in Byron are On Track and North Coast Community Housing

Most community housing providers, particularly in Byron, are responsible for managing

public housing that is owned by the State government (built decades ago), only own limited

stock themselves

Community housing providers also undertake small developments, know of three done

recently by North Coast Community Housing, primarily a mix of social housing (deeply

subsidized housing products) and affordable housing (below market products that are

subsidized, but not to the same extent as social housing)

Areas Most in Need:

Cannot speak geographically, but demographically, it is typical vulnerable people (elderly,

those outside of the job market, sick, disabled) identified as a core group in need on a

national scale, as well as those specific to Byron, being anyone that needs a foothold to get

into the market, being key workers and the working poor

The housing market is not influenced by the level of earning of those working in the area

(most situated employment is lower income bracket)

Housing price in Byron is affected by those outside of the area that either buy into Byron to

retire or have a holiday house, or invest and rent the property out

House prices are similar to capital cities and this is not an uncommon situation for resort

towns

Tools to Support or Encourage Affordable/Social Housing:

State government has not given local governments sufficient powers to operate in this area,

and not all local governments want to

Affordable Housing SEPP 2009 includes tools that local governments can use to support

and encourage this type of housing

Rolled back in 2011, but still includes some good recommendations, such as exemptions for

affordable housing (in relation to car parking spaces, etc.) as well as density bonuses

Some councils choose to be involved in this space, Lismore is a great example of this

(identified current measures and proposed actions to encourage and support this type of

housing are recent presentation to Northern Rivers)

Need to advocate for the State government to give local governments more authority to do

more

One example is giving local governments powers to set mandatory targets for developments

above a certain size to include affordable housing components

This has been done in bits and pieces, but never in a big way, as it has been done in the US

and UK

Impediments to Providing Affordable/Social Housing:

The way this housing product has been built and managed, particularly by clustering, in the

past makes it difficult to make a case for its expansion, as a result of the stigma associated

with it

Financial regimes means that housing isn’t kept in good order

There is an unshakable commitment to a target for subsidizing products, so much so that

you need to be a very high need individual to get a placement

Main impediment is the twin tension between low incomes/people on benefits and an inflated

housing market

This needs to be dealt with at a federal level (relates to incentives in the tax system)

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Presentation slides on financing social/affordable housing provided for further research

(includes references)

Recommendations:

Planning system is the best method for Council to address the provision of social and

affordable housing

Voluntary agreements also work and the State would argue that this is sufficient

Some local governments have succeeded in this area

Voluntary agreements are more likely to work when local governments contribute to the

development in some way, i.e. land.

Gap Between Demand and Provision:

There is a massive gap at both the National and Byron local level between demand and

supply of social and affordable housing

This gap is only increasing

Recommend contacting John McKenna (CEO) from North Coast Community Housing and

Paula Newman (Strategic Planning Coordinator) from Lismore City Council

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Attachment C Pilot Group Workshop Notes

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Residential Strategy Focus Group Workshop Housing Needs (16 Nov 2015)

ATTENDEES: Rob Van Iersel, Stephen Connelly, Rob Doolan, Alex Caras, Natalie Hancock, Sharyn

French, Greg Smith, Ian McIntosh and Liza Valks

SUMMARY NOTES General comments on the use of LEP and DCP as a form of regulation

LEP

Preference for key regulations to be kept in the LEP as it sets the bottom line (ie. has statutory force)

for development standards

DCP

DCP function only as ‘guidelines’

Development assessment process

The approval process tends to support development applications that replicate more of the

simple, generic, ‘tried and tested’ and easy to assess housing products (eg. ‘complying

development’) need to look at ways to encourage innovative DAs that fall ‘outside the

box’ and meet a housing need

It was suggested that some DA planners are too focused on achieving the exact DCP

provisions, even in the face of a poorer outcome

Water and sewer are a large part of the development cost – is there scope to review the

equation for contributions

Approach to Implementing Proposed Changes

Consultant planners strongly suggested that the most important change required is to

deliver more release areas in places that are readily developable (ie. not needing too much

fill etc.)

Make any regulatory changes slowly and work with current regulations. Suggested the first

changes could be density targets and minimum lot size provisions; do not remove FSRs

Support for an approach that recognises each community is different - may need 2 levels

generic provisions that suitably apply Shire wide and more locationally specific provisions

reflective on an area’s individual community and character

Important that in delivering the message Council is open for business that the ‘green and

sustainability’ narrative is not lost in the message – Foster a language that works both for

developers delivering diversity and the community wanting to be sustainable - suggest find

community champions who could help convey the message

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Density Targets

General support for density targets to be introduced as a regulatory tool established at the

LEP level

Precinct/Locality based approach required

Has to work closely with lot size provisions

Has to work closely with lot size provisions. Some thought lot sizes could/should be removed

if a density target applied ie. Density targets could work with floor space ratios to avoid the

need for minimum lot size regulations

Suited to greenfield sites (noting however current greenfield sites are largely already

subdivision approved except for West Byron)

Requires better integration between PLANNING ENGINEERING FINANCE

Need to be careful that the density target is not used to calculate future land release

requirements. The amount of land release needs to be adjusted for, inter alia, market

diversity, site constraints not discernible at a strategic planning level, lag in take up, house

vacancies and amount of housing being used for non-residential purposes

Would be more difficult to apply to infill areas and would need to have greater flexibility in

any DCP design outcomes to overcome pre-existing urban conditions such as street width,

lot shapes and car parking availability

Could be used for larger infill sites and set at 20- 25 dwelling /ha

Greenfield more appropriate to 15 dwellings/ha or less – do not see any higher figure

achievable

Support the idea of master planning for infill locations to give clearer direction

Raised that it was thought that Tweed Shire uses the concept of master planning in certain

release areas

Building Heights

Important to note that it is the use of metres not storeys and 3 storeys is achievable in a 9m

height limit on certain sites.

Need to be aware the ‘language’ however often centres on the number of storeys

There was no real support for changes in maximum building heights, in residential areas

Subdivision

Questioned the need for minimum lot sizes if have density targets and fsr

Support for the West Byron approach of having minimum threshold lots sizes where the

dwelling and land have to have an integrated design and where there is to be more than one

small lot in a row.

Subdivision provision to be applied across the Shire, noting the smaller lots should be

encouraged in the more central/serviced areas e.g. near shops than isolated sites.

Where lots are to be smaller the off site design provisions are equally important such as

streetscape, urban spaces and street layout

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Floor space ratios

Support for the continued use of FSR in the LEP as it provides certainty, security and keeps

development in proportion

Floor space ratios work well with height limits to maintain the character

B4 Mixed Use Zone in Tweed Street, Brunswick Heads, has limited development potential

due to 0.4:1 FSR being too low – needs to be investigated as part of next housekeeping LEP

amendments or new Residential Strategy.

Where should infill occur?

Concern was expressed that parts of Byron and Suffolk Park may be at capacity and care has

be taken in adjusting regulations that have an unintentional outcomes of eroding the

liveability of an area

Residential Supply influences (in addition to those identified in draft housing report)

Holiday letting

Wealthy (absentee) owning homes but not uses as their primary residence

Increase use of dwellings for business purposes beyond the ‘home-based business’ scale

perhaps due to the cost/availability/ accessibility of commercial space

The Byron industrial space is rapidly transitioning from industrial to residential uses,

particularly land west of Bayshore Drive.

Other points raised

Contributions are linked to numbers of bedrooms and as currently set favours dwellings with

more bedrooms than less – therefore could be acting as a disincentive to smaller housing

Definition of shop top is limiting as housing component cannot occur behind the

retail/commercial premises

Car parking requirements are sometimes an issue for shop top and this could be reviewed

Any changes/relaxations to car parking need to bear in mind the end user to avoid the car

parking inadequacy being a future problem for the resident’s e.g. . would the housing attract

a large number of individuals each with their own car

Scope exists for the provision of manufactured housing estates as a new housing product in

Byron Shire, where the land/a site is rented and the person owns their mobile home.

Developer contributions need to be reviewed in light of how modern boarding houses are

being developed.

Council land on western side of Bayshore Drive, Byron Bay has potential to be a live /work

product redevelopment opportunity - and used as case example

In seeking to meet the need for dwellings for locals the concept of an intentional community

with a caveat that the residents must be local is being considered in an urban setting

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Attachment D Dwelling Mix Projections

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Dwelling mix projections

Purpose

Dwelling mix projections are useful in understanding the future housing needs of a population,

and the mix of new dwellings needed in order to achieve it.

Methodology

Propensities for each household type (couples, couples with children, one parent families, other

family types, multi-family households, lone person households and group households) to live in

particular dwelling types from census data 2011 were used as a base for the analysis. These

propensities were applied to household type projections for the Byron Shire Council from the

New South Wales Department of Planning and Environment to 2031.The resulting dwelling mix

breakdown was then applied to the Byron Shire Council dwelling targets as noted in the Issues

Paper. We assumed that all new dwellings in the rural area would be separate houses, and

therefore a number of separate houses were excluded from the projected figures in order to

understand the urban dwelling mix.

Three scenarios were developed to project future dwelling mix:

No change in household/dwelling propensities – in this scenario, the current propensities

for each household type to live in particular dwelling types continues into the future.

Low change in household/dwelling propensities – in this scenario, the propensities for each

household type to live in particular dwelling types shift towards smaller dwelling types.

High change in household/dwelling propensities – in this scenario, the propensities for

each household type to live in particular dwelling types shift towards smaller dwelling types

at a higher rate than in the low change scenario.

For the low and high change scenarios, the propensities of couples, one parent families and

lone person households to live in separate houses were decreased. It was assumed that for

Byron Shire, the shift would likely be towards semi-detached dwellings rather than attached

dwellings. The specific change assumptions are shown below:

Dwelling Preference No Change Low Change High Change

Separate House = -2% -6%

Semi-detached = 1% 4%

Attached = 1% 2%

The effect of these assumptions on the future propensities to live in particular dwelling types is

shown below:

Scenario No Change Low Change High Change

Household Type Couple One parent family

Lone person

Couple One parent family

Lone person

Couple One parent family

Lone person

Separate House 86.8% 81.4% 69.0% 84.8% 79.4% 67.0% 80.8% 75.4% 63.0%

Semi-detached 7.6% 10.4% 12.4% 8.6% 11.4% 13.4% 11.6% 14.4% 16.4%

Attached 3.3% 6.2% 10.9% 4.3% 7.2% 11.9% 5.3% 8.2% 12.9%

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The assumptions used in the model are usually informed by stakeholder consultation, analysis

of mobility, changes in preferences in the past, changes in preferences in other comparable

locations, the level of housing affordability, and the needs of disadvantaged groups – for

example, the number of people on the public housing register and feedback from social housing

providers. However, in this case the assumptions were not based on any specific methodology

or data. Rather, the assumptions were chosen to identify an achievable target range given the

level of local population growth and development activity.

Results

Even as the no change scenario assumes future propensities remain the same as they were in

2011, changing household types over this period mean that 76% of new dwellings in the urban

areas would need to be separate houses, and 24% would need to be other dwelling types to

2031 (see the table below). This is compared to the current mix of dwellings in the Byron Shire

at 2011 where 82% of dwellings were separate houses, and 18% were a mix of detached,

attached, and other dwelling types.

The low change scenario suggests that 71% of new dwellings would need to be separate

houses, and 29% would need to be other dwelling types if preferences changed. The high

change scenario suggests that 53% of new dwellings would need to be separate houses, and

47% would need to be other dwelling types if preferences changed.

Year Current Mix: 2011

Mix of New Dwellings to 2031

Scenario - No Change Low Change High Change

Separate House 82% 76% 69% 53%

Semi-detached 9% 11% 15% 27%

Attached 5% 7% 11% 15%

We think that small lot houses may offer similar advantages to the local community as semi-

detached and attached dwelling types in terms of diversity and affordability. Therefore the

results have been simplified.

Year Current Mix: 2011

Mix of New Dwellings to 2031

Scenario - No Change Low Change High Change

Traditional house on larger lot 82%1 76% 69% 53%

Everything else: Small lot house, townhouse, unit, shop top apartment etc.

18% 24% 29% 47%

Note 1: It was assumed that most of the houses in the region are currently traditional sized houses and

lots, and therefore they have been grouped in this category.

Conclusion

There are some significant housing affordability issues in the urban areas of Byron Shire, and

we understand that there would be a preference for smaller houses, and detached and attached

dwellings (especially if they were more affordable, well design and well located). The difficulty is

making assumptions about specific future dwelling preferences using current propensity data.

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Given housing affordability issues identified in the Issues Report, it could be argued that the low

change scenario is the minimum goal to be achieved by 2031.

It is important to note that this higher proportion of smaller lots, semi-detached and attached

properties should not be only targeted through new greenfield development which would then

have a substantially different feel to other locations. High density development also is best

located near facilities and services, and these are near the centre of towns. The mix of

dwellings suggested above will need to be balance throughout the urban areas of the region,

including new greenfield development and infill development.