Chapter 4 – Framework for Infrastructure Charges...

RSC V1 – March 2006 Part 11 – Planning Scheme Policy 3 – Contributions and Security Bonding - Chapter 4 – 7

Chapter 4 – Framework for Infrastructure Charges Contributions (Transport) 3.4.1 Purpose (1) The purpose of this Policy is to implement an equitable developer contributions scheme for the

trunk transport network servicing the mainland of Redland Shire. The contributions will be used to fund new and/or improved infrastructure needed to manage future growth on the Shire’s mainland.

(2) Nature and Intention of Planning Scheme Policy

(a) This planning scheme policy sets the basis for infrastructure contributions for trunk transport infrastructure for Redland Shire. The policy provides the basis for the charges.

(b) A new Priority Infrastructure Plan and related Infrastructure Charges Schedule will ultimately

be adopted and form the basis for infrastructure provision. In the interim, this Planning Scheme Policy – Framework for Infrastructure Charges Contributions (Transport) will be the basis for receiving contributions toward trunk transport infrastructure needed to service growth within the Shire.

(3) Nature of Development Which Policy Applies and Triggers

(a) This planning scheme policy applies to assessable development for material change of use and/or reconfiguration of a lot in Redland Shire, in relation to the following uses:

(i) Aged Persons and Special Needs Housing;

(ii) Apartment Building;

(iii) Caretakers Dwelling;

(iv) Display Dwelling;

(v) Dual Occupancy;

(vi) Dwelling House;

(vii) Multiple Dwelling;

(viii) Small Lot House.

(b) For Material Change of Use and Reconfiguration of Allotment applications for the above

residential uses, Council will impose a requirement for a contribution to trunk transport infrastructure where the development increases demand on the transport network.

(c) For forms of development other than residential (i.e. commercial or industrial) on the

mainland, Council will negotiate an appropriate charge and/or works for transport infrastructure with the developer based on likely level of impact on the transport network.

3.4.2 Background (1) The need for Transport Infrastructure

(a) Strong growth is expected to continue in Redland Shire creating an increasing demand on roads and other transport infrastructure. To cater for this growth, and to ensure the mainland within the Shire have an effective road network with the capacity to cater for daily demands, continued upgrades to the road network and public transport infrastructure will be required.

Part 11 – Planning Scheme Policy 3 – Contributions and Security Bonding – Chapter 4 RPS V1 – March 2006

(2) Adoption date and superseded policies (if applicable)

(a) The policy will replace the Planning Scheme Policy 3 – Contributions and Security Bonding Chapter 4 Movement Network within Part 11 of the Redland Planning Scheme. This policy includes the following areas:

(i) Wellington Point;

(ii) East Thornlands;

(iii) Redland Bay.

3.4.3 Network Planning Assumptions (1) Definition of infrastructure covered by policy

(a) The trunk infrastructure covered by this policy and defined in the Redlands Planning Scheme includes the following:

(i) Arterial roads;

(ii) Sub-arterial roads;

(iii) Trunk collector streets,

(iv) Collector streets.

(b) This policy does not cover any roads controlled by the State Government.

(2) Transport – Desired Standards of Service

(a) Roads

(i) The Desired Standards of Service for roads on the mainland is largely dependent on the road hierarchy classification, and are shown in Table 1;

(ii) The Desired Standards of Service apply to all roads on the mainland;

(iii) Quantitative standards apply to the network of roads on the mainland. Quantitative

standards for road infrastructure relate to the capacity of the network, as it provides a threshold for the provision of additional infrastructure.

Table 1 Desired Standards of Service (Quantitative Standards)

Mainland Road Classification AADT V/C

Equivalent Residential Allotments

Collector Street 1,000-3,000 0.5 300 Trunk Collector Street

3,000-10,000 0.75 1000

Sub-Arterial Road 10,000-20,000 0.75 2000 Arterial Road 30,000 0.85 n/a

* V/C Ratios developed as per relevant classification in Austroads Guide to Traffic Engineering Practice – Part 2. *Equivalent Number of Lots according to Part 9, Schedule 6 – Movement Network and Road Design from RSC’s Drafting Planning Scheme 2nd State Interest Review.

RSC V1 – March 2006 Part 11 – Planning Scheme Policy 3 – Contributions and Security Bonding - Chapter 4 – Page 19

(b) Bus facilities to include bus stopping treatments and shelters in accordance with joint Redland

Shire Council and Translink programs.

(c) Desired Standards of Service for cycleways and pathways concern geometric design considerations required for the construction of trunk infrastructure as defined by on and off road facilities identified in the Redlands Cycling and Pedestrian Strategy, and summarised in Table 2 below.

Table 2 Desired Standards of Service for Cycleways and Pathways

Road Classification

Design Speed km/h General Design Characteristic

Collector Street 50 Footpaths or shared path on one side of road desirable or 1.5m wide bicycle lanes marked on carriageway.

Trunk Collector Street

60 Footpaths typically provided. Bikeways desirably provided on road verge but on existing road systems they may be incorporated in breakdown/parking lane (1.5m wide).

Sub-Arterial Road 60 Typically bicycle lanes on road verge. 2-2.5 m shared path facilities or footpath on both sides of road and/or 1.5m wide bicycle lands marked on carriageway.

Arterial Road 70-80 Typically bicycle lanes on road verge. 2-2.5 m shared path facilities desirable or 2 m wide bicycle lanes marked on carriageway.

(3) Planning Areas, Catchment Areas and Planning Criteria

(a) Refer to Appendix A – Infrastructure Contributions Schedule. (4) Growth Assumptions

(a) Growth assumptions used for this Planning Scheme Policy are those population and household growth rates prepared for Redland Shire Council’s Priority Infrastructure Plan, refer to Table 3 and 4.

Part 11 – Planning Scheme Policy 3 – Contributions and Security Bonding – Chapter 4 RPS V1 – March 2006

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3.4.4 Process for Determining Developer Contributions (1) Procedures Used to Calculate Trunk Road Infrastructure Contributions on the Mainland

(a) The adopted road infrastructure contributions scheme is based on charging new developments on the mainland the shared cost of Council’s planned program of trunk road infrastructure upgrading through to the year 2021. The trunk infrastructure elements are identified in the Plans for Trunk Infrastructure, included in Appendix A.

(b) Trunk Road Infrastructure includes arterial roads, sub-arterial roads, trunk collector streets

and some collector streets. The charges presented do not cover the cost of providing a new development with access to the trunk road infrastructure network. The cost of providing such access is a cost borne by the developer.

(c) The process used to calculate Trunk Road Infrastructure Contributions for new developments

on the mainland portion of the Shire is detail below.

(i) Calibrate and Validate a Base Year (2005) Travel Model

a. Traffic forecasts produced by Veitch Lister Consulting’s multi-modal travel forecasting model (Zenith) have been used to estimate the scale of traffic growth within Redland Shire through to 2021. The scale of investment required to maintain levels of service across Council’s road network for the expected traffic growth has been assessed using these forecasts.

b. The Zenith model was initially set-up to replicate travel associated with Redland Shire

in 2005 (the base year). The model’s traffic estimates within Redland Shire were then compared (or validated) against recent traffic counts undertaken in the Shire. The model’s traffic estimates were found to closely correspond with the traffic counts. Both the charge and the travel model are to be reviewed on a regular basis. This will allow Council to monitor the accuracy of the model and update the network as required.

(ii) Establish Horizon Year 2021 Travel Model

a. The second step in the process of determining the upgrade works required is the

establishment of a 2021 version of the Zenith model. This model incorporates Council’s planning assumptions regarding the anticipated scale, type and location of development in Redland Shire through to the year 2021.

b. The 2021 model also included committed and planned Council, State and Federal

transport infrastructure within South East Queensland.

(iii) Identified Deficiencies in the 2021 Transport Network

a. The 2021 travel model was run and deficiencies in the road network were identified by examining the predicted traffic volume/capacity ratios (V/C) across the road network. Deficiencies were categorised according to Austroads level of service definitions, as shown in Table 5.

Table 5 Level of Service Categorisation

Level of Service 24 Hr V/C

A <0.7 B 0.70 – 0.85 C 0.85 – 1.0 D 1 – 1.15 E 1.15 – 1.30 F >1.30

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Level of Service Austroads Description

A General free flow conditions with operating speeds usually about 90% of the free flow travel speed for the particular class of arterial. Vehicles are unimpeded in manoeuvring in the traffic stream and

stopped delay at intersections is minimal. B Relatively unimpeded operation with average travel speeds about

70% of the free flow speed for the particular arterial class. Manoeuvring in the traffic stream is only slightly restricted and

stopped delays are low. C Stable operating conditions but with manoeuvring becoming more

restricted and motorist experiencing appreciable tension in driving, longer queues and/or adverse signal coordination may contribute to lower average travel speeds of about 50% of the free flow speed for

the arterial class. D Conditions border on a range in which small increases in flow can

significantly increase intersection delay and reduce travel speed. Travel speeds are about 40% of the free flow speed.

E Conditions are characterised by significant intersection delays and travel speeds of 33% of free flow speed or lower. Contributing

factors may be: adverse signal progression, closely spaced signals, extensive queuing at critical intersections (ie. saturated intersection

conditions). F Traffic flow at this level is very low speed – below 25% to 33% of

the free flow speed for the arterial class. Signalised intersections would be severely congested (over-saturated) with extensive

queuing and delay.

b. Level of service category A indicates the best possible performance (traffic operating at near free–flow speeds), while level of service category F indicates highly congested conditions – i.e. conditions that result in a journey that might take only 20 minutes in the off-peak taking over an hour in the peak.

c. Level of service C has been adopted as the minimum required level of service across

a 24 hr period for trunk road infrastructure in urban conditions, Level of service C reflects V/C ratios in the range 0.85 to 1.0. This level of service has been used in the assessment of road network deficiencies, and in the identification of road network improvements required to maintain levels of services.

(iv) Nominate Road Improvement Projects for Network Deficiencies in 2021 Model

a. Road capacity deficiencies in the network were identified for the 2021 model. Priority

road network upgrades were determined so that a level of service objective of c, across most of the trunk road infrastructure was achieved.

(v) Develop a Program of Road Improvement Project through to 2021

a. A program of road improvement projects was subsequently prepared and aimed at

maintaining the level of service on the road network over the period 2006 to 2021.

b. Some projects were included in the program that were justified on grounds other than overcoming road capacity deficiencies. Some projects were considered justified because of road safety and urban amenity issues.

c. The agreed road improvement program is enclosed as Appendix A.

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(2) Equitable Apportionment to New Development

(a) The basis for cost apportionment is an equal distribution of the total cost of all trunk road network components on the mainland spread across all residential traffic generators (existing and future) in the Redland Shire.

(3) Calculating Charges for New Residential Development

(a) Typical equivalent residential allotments (ERA) rates for the range of residential land uses applicable to this policy are presented in Table 6.

Table 6 Equivalent Residential Allotment Rates

Use Equivalent Residential Allotment

Assessment Unit Charge

Aged Persons and Special Needs Housing Independent 0.30 Per dwelling $3 404 Semi-Independent 0.15 Per room $1 702 Dependent 0.08 Per bed $908

Apartment Building One Bedroom 0.30 Per apartment $3 404 Two Bedroom 0.60 Per apartment $6 808 Three Bedroom 0.80 Per apartment $9 078 Penthouse 1.00 Per apartment $11 347

Caretakers Building 1.00 Per dwelling $11 347 Dual Occupancy 0.30 Per bedroom $3 404 Dwelling House (detached) 1.00 Per dwelling $11 347 Multiple Dwelling 0.30 Per bedroom $3 404 Small Lot House 1.62 Per house $7 035 Other Residential Uses 0.30 Per bedroom $3 404 (4) Indexation

(a) Developer contribution rates for transport infrastructure are in August 2006 dollars. Land required for transport corridors and road construction costs have been included in the Transport Infrastructure Contribution. Contributions payable shall be at the rate applicable at the time of payment. The Transport Infrastructure Charge will be indexed on 1st July each year by the Australian Bureau of Statistics Road and Bridge Construction Index.

(5) Subsidies and grants

(a) Any subsidies or grants that could be identified at the time of the planning for the Plans for Trunk Infrastructure have been removed from the overall cost of facilities.

(6) General Requirements for Credits

(a) There may be circumstances where the proposed development receives credit for previous contribution from the same development for transport infrastructure. In these cases the previous contribution if paid for transport infrastructure, may provide the basis for credits for the transport infrastructure provided by this policy.

(b) The determination of how a developer contribution is paid is at the discretion of Council. In

cases where credits apply, credits will be available to offset the infrastructure charges required by this Planning Scheme Policy.

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(7) Creditable Contributions

(a) Where a condition of development approval (by Council) requires the applicant to undertake works and/or dedicate land which are identified as part of the infrastructure charges schedule it is appropriate for the Council to offset the agreed costs of such works and/or land form the Transport Infrastructure Charge contribution. The value of the works will need to be agreed to by council prior to the works commencing and documented in an Infrastructure Agreement.

(b) An existing use has a credit values as stated in Table 6.

3.4.5 Charge Areas (1) The mainland transport charge will apply to all future residential development on the mainland

within the Priority Infrastructure Area, that increases the demand on the transport network. (2) Definition of contribution areas

(a) Refer to Appendix B for Maps describing the transport contribution area. (3) Existing Approvals and Infrastructure Agreement areas

(a) Existing Infrastructure Agreements are not subject to this policy.

(b) All community Title Schemes or similar development will be charged in accordance with the rates in Table 6.

3.4.6 Cost and Timing of Infrastructure (1) Details regarding cost and timing of infrastructure can be found in supporting documents – Refer

to Infrastructure Contributions Schedule in Appendix A. 3.4.7 Calculating Infrastructure Contributions (1) The transport infrastructure contribution on the mainland for an equivalent residential allotment

(ERA) can be found in Table 6. The equivalent rate for other residential land use can be determined by applying the equivalency rates in Table 6.

(2) The process for determining the transport infrastructure contribution for different development

types is outlined below.

(a) Step 1: Determine the developer charge per equivalent residential allotment (ERA), which is detailed in the local government’s current Schedule of Fees and Charges.

(b) Step 2: Identify the acceptable le residential density for the developable land given in part 4 of

the Redland Planning Scheme or use the actual proposed densities 9shichever is the greater).

(c) Step 3: Determine the developable land area (in hectares).

(d) Step 4: Determine the appropriate equivalency factors for the type of residential development shown in table 6.

(e) Step 5: Determine the proposed number of equivalent residential allotments (ERA) for the site

by multiplying the density factor determined in step 2 by the developable land area in step 3 and the equivalency factor determined in step 4.

(f) Step 6: Determine the existing number of equivalent residential allotments (ERA) for the site

by using the values given in Table 6.

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(g) Step 7: Determine the total number of equivalent residential allotments (ERA) for the site by subtracting the existing number determined in step 6 from the proposed number determined in step 5.

(h) Step 8: Determine the Transport Infrastructure contribution by multiplying the total equivalent

residential allotments generated for the site determined in Sept 7 by the developer charge rate determined in Step 1.

Note – If the development does not achieve the densities as set out in the Redland Planning Scheme, the developer is required to pay the developer contribution in accordance with planned densities as stated in the Redland Planning Scheme. 3.4.8 Form of Contribution (1) Generally and at its discretion, Council will seek either a financial contribution based on the above

charge rates, works and/or land in lieu in accordance with the Infrastructure Contribution Schedule projects (refer Appendix A) and individual infrastructure agreements.

3.4.9 Credit for Previous Contributions (1) Credit may be sought for previous transport infrastructure contributions attached to a parcel of

land where convulsive documentation is presented to Council that detail:

(a) How and the extent to which the previous charges or works complies with requirements of the Infrastructure Contributions Schedule

(b) The date the previous charges works was dedicated to Council;

(c) The lawful development potential and actual development that accompanied the charges for

works; and

(d) A breakdown of credit per lot for each lot that resulted from a previous residential material change in use or reconfiguration of a lot for which credit is sought.

3.4.10 Terms and Definitions “ERA” Means Equivalent Residential Allotment “RSC” Means Redland Shire Council “ICS” Means Infrastructure Contributions Schedule “lot” A separate distinct parcel of land created on the registration on a plan of subdivision, under the land title act 1994. Appendices Appendix A – Infrastructure Charges Schedule Appendix B – Maps of existing and future infrastructure

f – Part 11 Planning Scheme Policy 3 – Contributions and Security Bonding – Chapter 4 RPS V1 – March 2006

Appendix A – Transport Infrastructure Contributions Schedule

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Appendix B – Maps for existing and Future Infrastructure

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