Minutes of General Meeting - Wednesday, 22 January 2025

General Meeting Minutes 22 January 2025

15.2 Jones Road to Old Cleveland Road Draft Local Area Plan - Preliminary Consultation

Objective Reference: A11729515

Authorising Officer: David Jeanes, Acting General Manager Community & Customer Services

Responsible Officer: Michael Anderson, Acting Group Manager City Planning & Assessment

Report Author: Dean Butcher, Principal Strategic Planner

Attachments: 1. Planning report ⇩

2. Urban design framework ⇩

3. Access and movement report ⇩

4. Infrastructure capacity assessment ⇩

5. Local area plan scenarios ⇩

Purpose

To seek Council’s endorsement to undertake a preliminary phase of non-statutory public consultation on the draft Jones Road to Old Cleveland Road Local Area Plan (JROCR LAP) proposed land use scenarios.

Background

19 April 2023: At its General Meeting, Council resolved to endorse the Redlands Coast Local Area Planning Framework. The framework established a process for progressing local area plans and is identified as a 2021-2026 key initiative under Goal 5: liveable neighbourhoods of Our Future Redlands – A Corporate Plan to 2026 and Beyond.

15 December 2023: The final SEQ Regional Plan (ShapingSEQ 2023) was released by the State Government. For the Redlands Coast, the new population projections were increased from 188,000 at 2041 (ShapingSEQ 2017) to 211,500 at 2046. The plan also incorporates a strategy to identify and prioritise sites in high amenity areas for higher residential densities.

February 2024: Officers commenced preparation of the JROCR LAP. Initial work included the preparation of a background planning report and a preliminary engagement with key stakeholders and businesses within the study area.

April 2024: PSA Consulting was engaged as the lead consultant to deliver the urban design strategy, access and movement strategy and JROCR LAP scenarios.

August 2024: The final urban design strategy, final access and movement strategy and draft JROCR LAP scenarios were provided to officers.

September 2024: H2One was engaged to prepare a water supply and sewerage network capacity assessment (infrastructure capacity assessment).

1 October 2024: The final Redland Housing Strategy 2024 – 2046 was finalised. Implementation action 1 seeks to expand and consolidate the medium density residential zone, with a primary focus on areas proximate to higher-order centres.

11 October 2024: The draft infrastructure capacity assessment was provided to officers. It outlined a small number of upgrades required to support future growth in the JROCR LAP study area.

Issues

Site description

The study area, located in the suburb of Capalaba, is approximately 200m northeast of the Capalaba principal centre zone. It is bounded by Old Cleveland Road East to the east, Old Cleveland Road to the south, Jones Road in the north and Anderson Street/Coolnwynpin Creek to the west (refer to Figure 1).

Figure 1: Jones Road to Old Cleveland Road local area plan study area

The study area is approximately 21 hectares in size and comprises the following zones (refer to Figure 2):

· Medium density residential zone

· Mixed use zone

· Low density residential zone

· Recreation and open space zone

· Conservation zone

Existing development

Existing development within the study area is diverse and can be broadly described as follows:

Northern mixed use zone

Predominantly characterised by noise-emitting industrial activities, such as a containers for change collection point, metal recycling centre, industrial sheds and workshops. A small number of commercial tenancies, including an indoor gym, also operate in this area. The majority of these landholdings take access from Jones Road and lots vary in size from 1,000m² – 10,000m².

Central residential zones

Predominantly comprised of detached dwelling houses on 600m² – 700m² lots. A small number of larger residential landholdings exist across this area, which range in size from 1,500m²– 15,000m². The area also accommodates two town house developments and an aged care facility (Capella Bay).

Southern mixed use zone

Features a mixture of commercial tenancies and a service station. A significant parcel of vacant land in single ownership is located at 238-254 Old Cleveland Road East. This is hereafter referred to as the ‘Bunnings site’.

Site selection

The LAP Framework includes guiding principles for LAP site prioritisation, based on level of opportunity, development pressures, social pressures, land and planning constraints, governance challenges, change management, level of planning risk and housing supply and diversity. In considering these principles, the Jones Road to Old Cleveland Road (JROCR) area ranked as a high priority location for the following reasons:

· The study area is in a strategic location, with high amenity areas to the north and west, access to current and future public transport options, and proximity to employment, business, and lifestyle opportunities, including the regional open space network and future Birkdale Community Precinct.

· There is redevelopment potential due to the age of the existing dwelling stock.

· There is an opportunity to facilitate a high-quality design outcome at 238-254 Old Cleveland Road East - a key future development site and potential gateway for the precinct.

· There is an opportunity to improve the efficiency of the access and movement network across the study area.

· Rationalising zone boundaries could reduce interface issues and reverse amenity impacts in the longer-term – see the ‘land use conflicts (zoning)’ section below for further context.

· There is an opportunity to expand the medium density residential (MDR) zone and support increased housing diversity in proximity to the Capalaba principal regional activity centre (PRAC), consistent with the outcomes espoused in the final Redland Housing Strategy 2024-2046.

Land use conflicts (zoning)

The current zoning configuration in the study area is a legacy planning issue that presents several challenges. From a residential amenity perspective, point-source emissions (for example light, dust and noise) from existing industrial activities can adversely impact quality of life for residents and discourage landowners from pursuing redevelopment opportunities (for example higher density residential development). From a business perspective, emission-based complaints may adversely impact both existing and future (planned) operations.

The development of a comprehensive local area plan offers a strategic opportunity to address these issues by establishing appropriate buffer zones, realigning zone boundaries, and clearly defining the preferred future land use intent for the area.

Key project stages and next steps

The LAP framework outlines the key steps in the LAP formulation process (refer to Figure 3). Recognising that successful LAP preparation requires collaboration between Council and the local community, the framework emphasises the importance of early engagement to ensure stakeholders are informed and involved in decisions that affect them. Consistent with the LAP framework, this report recommends undertaking a preliminary phase of public consultation on the draft LAP scenarios before preparing the draft LAP (step 5). If supported by Council, this draft LAP could inform a future major amendment to City Plan.

Figure 3: Key steps in preparing a LAP (extract from the Redlands Coast LAP framework)

Background studies

Planning Report

The planning report (refer to Attachment 1) was prepared by Council’s Strategic Planning unit. It provides a detailed overview of the existing site and surrounds, planning history, property information, planning and environmental constraints and infrastructure. The report also contains a Strengths, Weaknesses, Opportunities and Constraints (SWOT) analysis and a compendium of relevant maps, including City Plan overlays and State Government environmental mapping.

Urban design framework (LatStudios)

The urban design framework (refer to Attachment 2) presents an analysis of existing site conditions and key land use considerations for the study area. It addresses the management of interface issues, proposes improvements to the active transport network and establishes clear urban design objectives for the precinct. Drawing on case studies from across South East Queensland, it explores potential development typologies that could be facilitated through location-specific urban design provisions. The framework establishes the following five urban design principles to guide future development of the LAP:

1. Shady, green, and safe places: Create sub-tropical streets that provide safe, desirable and walkable connections.

2. A connected community: Improve connections to Capalaba town centre, public transport (PT) and the open space network.

3. Managed interfaces and transitions: Manage interfaces by establishing buffers, activating frontages, and establishing a gateway entrance to the precinct.

4. Resilient and climate responsive: Minimise development in hazard areas, consider building orientation and protect/enhance ecological values within the study area.

5. Adaptable for future growth: Rationalise zone boundaries to better manage interface issues between residential and industrial/mixed use land uses.

Access and movement strategy (PSA)

The access and movement report (refer to Attachment 3) outlines key recommendations for improving connectivity and safety within the JROCR LAP study area. It highlights the need for a major signalised intersection upgrade at Old Cleveland Road East and Brewer Street, along with minor improvements to other intersections. It proposes a new road connection from Brewer Street to the proposed Bunnings development site and advises against establishing a through-road from Brewer Street to Anderson Street to prevent rat-running near residential areas. The strategy recommends establishing a sub-tropical boulevard street with a shared path along Brewer Street, linking Capalaba Town Centre with the future Birkdale Community Precinct. Additionally, it suggests completing missing pathway connections, considering the adoption of town centre parking rates for new development, and enhancing crime prevention through environmental design (CPTED) outcomes along key pedestrian corridors. These improvements include upgrading creek crossings, removing overgrown vegetation, and enhancing lighting.

Draft infrastructure capacity assessment (H2One)

The infrastructure capacity assessment (refer to Attachment 4) evaluates potential augmentations required to the wastewater and water network to support future growth in the JROCR LAP study area. The assessment identifies several upgrades to the wastewater network, including a new incoming gravity sewer, pump and wet well upgrade at sewer pump station 23, as well as potential upgrades to emergency storage capacity. It also proposes an alternative servicing strategy involving discharge towards the Thorneside Sewerage Treatment plant, with the potential future decommissioning of the Capalaba Sewerage Treatment Plant. For the water network, the assessment suggests a new 150mm water main will be required to meet fire flow requirements.

Should Council resolve to further consider proposed land use changes following further consultation with the community, the augmentations discussed above would need to be reviewed and considered more thoroughly. Any potential increase in demand from this area would also need to be considered as part of the wider treatment plant upgrade program that Council has underway. Ultimately, this information will inform future iterations of Council’s Netserv Plan and Local Government Infrastructure Plan (LGIP).

Draft LAP scenarios

As outlined in the preceding sections, Council has commenced preparation of the JROCR LAP to provide a clear direction for future growth in the area. The two LAP scenario maps (refer to Figures 4 and 5), described as the ‘medium’ and ‘high’ change scenarios, draw upon the analysis and insights contained in the background studies. They outline how future development; infrastructure improvements and urban design outcomes might be realised in the area over time. These maps form part of Attachment 5: Options Analysis (refer page 7 onwards for higher resolution imagery).

Figures 4 and 5: Medium change (left) and high change (right) scenarios

The key land use proposals and differences between each scenario is outlined below (refer to Table 1).

	Medium change scenario	High change scenario
Zoning and building heights	· Retain the northern mixed use zone adjoining Jones Road and the nominal 15m (approx. 5 storeys) maximum building height. · Rezone low density residential land on the western side of Brewer Street to medium density residential. Adopt a nominal 15m (approx. 5 storeys) maximum building height. · Retain the existing medium density residential zoning in the centre of the study area and the nominal 13m maximum building height (approx. 4 storeys). · Rezone Bunnings’ landholdings at 238-254 Old Cleveland Road East, creating a consolidated mixed use zone that extends from Old Cleveland Road to Brewer Street. Provide for increased building heights (21m or approx. 7 storeys) at 194-200 Old Cleveland Road.	· Rezone the northern mixed use zone to medium density residential. Adopt a 21m (approx. 7 storeys) nominal maximum building height for this part of the study area. · Rezone low density residential land on the western side of Brewer Street to medium density residential. · Adopt a nominal 15m (approx. 5 storeys) maximum building height across the entirety of the central medium density residential zone. · Rezone the landholdings at 238-254 Old Cleveland Road East, creating a consolidated mixed use zone that extends from Old Cleveland Road to Brewer Street. Increase nominal building heights in this area to 30m. Also provide for increased (21m or approx. 7 storeys) building heights at 194-200 Old Cleveland Road.
Access and movement	· Provide for a major signalised upgrade at the Brewer Street/ Old Cleveland Road East intersection, including an east-west pedestrian connection. · Complete missing pathway connections. · Establish a 2.5m wide shared path linking along Brewer Street to the future Birkdale Community Precinct. · Provide a single consolidated access from Brewer Street to the Bunnings site at 238-254 Old Cleveland Road East. · Via Anderson Street, provide for service vehicle access to the Bunnings site (Note: a through connection to Brewer Street that enables ‘rat-running’ is not supported). · Establish the missing active transport connection from the Anderson Street stub through to Brewer Street. · Upgrade the bridge connection and improve active transport connectivity to the Sam Sciacca Sporting fields in the west.	· Provide for a major signalised upgrade at the Brewer Street/ Old Cleveland Road East intersection, including an east-west pedestrian connection. · Complete missing pathway connections. · Establish a 2.5m wide shared path linking along Brewer Street to the future Birkdale Community Precinct. · Provide a single consolidated access from Brewer Street to the Bunnings site at 238-254 Old Cleveland Road East. · Provide a new road and pathway connection linking Lyre Street to Jones Road. · Via Anderson Street, provide for service vehicle access to the Bunnings site (Note: a through connection to Brewer Street that enables ‘rat-running’ is not supported). · Establish the missing active transport connection from the Anderson Street stub through to Brewer Street. · Upgrade the bridge connection and improve active transport connectivity to the Sam Sciacca Sporting fields in the west.
Interface management	· Provide for a buffer between the northern mixed use zone and central medium density residential zone. · Establish land use buffers along the northern and eastern frontages of the Bunnings site to improve visual amenity, screen parking areas and reduce the visual bulk/scale of future development. · Through redevelopment of key sites, facilitate the establishment of active frontages along the southern and eastern boundaries of the mixed use zone.	· Rezone the northern mixed use zone to medium density residential, reducing reverse amenity impacts as industrial land uses are eventually redeveloped into higher density residential development over time. · Through redevelopment of key sites, facilitate the establishment of active frontages surrounding the southern mixed use zone. · Facilitate the establishment of additional ground floor retail tenancies along frontages to Old Cleveland Road and Old Cleveland Road East.
Urban design	· Facilitate the delivery of a gateway building on the Bunnings site that signifies precinct entry through architectural significance and visual impact.	· Facilitate the delivery of a gateway building on the Bunnings site that signifies precinct entry through architectural significance and visual impact.

Table 1: Key land use proposals and differences between the medium and high change scenarios.

Why develop and consult on two local area plan scenarios?

The two LAP scenarios are intended to form the basis of preliminary consultation with the community. They present possibilities for future development, infrastructure improvements, and urban design within the study area, albeit at different development intensities. The rationale for consulting on two scenario maps, as opposed to a single scenario map, is as follows:

· Tangible proposals/refinement of ideas: Presenting scenarios facilitates community discussion on the specific merits and drawbacks of each option. This approach will enable Council to gather targeted feedback, which can be used to refine and combine preferred elements into a final, optimised plan that considers community aspirations.

· Community engagement: Scenario-based consultation may encourage participation from residents, businesses, and other stakeholders, allowing them to visualise and compare potential futures for their area.

· Involving the community in decisions that impact them: Presenting multiple scenarios for input enhances community involvement in shaping the area's future. This approach invites residents to participate in the planning journey, fostering a sense of shared responsibility and avoiding the perception of a predetermined outcome.

Public consultation

Under Council’s community engagement policy (POL – 3050), the appropriate level of community engagement for a project at this stage of development is ‘inform and consult’.

Figures 6: IAP2 spectrum of public participation

Officers are proposing to conduct a five-week community engagement program in stages. The consultation will aim to:

· Inform the community about the commencement of the public consultation period.

· Explain the project's purpose and goals.

· Test ideas and gather feedback on two draft LAP scenarios from key stakeholders and the broader community.

Feedback collected during this period will be used to generate a public submission report and inform the development of the draft LAP, including a future Council decision on whether to proceed with a major amendment to City Plan. The primary feedback mechanism will be an online survey hosted on the project web page. While subject to further refinement, engagement activities and key project information are likely to be made available via:

· Letters to residents, landowners, and business owners/operators within the study area

· Newsletter, brochures or similar for stakeholders in proximity to the study area

· The Your Say project web page

· Display information at Council’s service centres and Capalaba library

· Media releases

· Geo-targeted social media posts

· Bookable meet-the-planner sessions

Strategic Implications

Legislative Requirements

This report recommends undertaking a preliminary phase of non-statutory public consultation on the draft LAP scenarios. Should Council later decide to proceed with a major amendment to City Plan to implement the JROCR LAP, the process outlined in the Ministers Guidelines and Rules (MGR) would be followed. The MGR, a statutory guideline under the Planning Act 2016, outlines mandatory steps, including formal public consultation.

Risk Management

The risks involved have been discussed, where relevant, in the issues section. The strategic approach of undertaking a preliminary phase of public consultation has been proposed to reduce risks by identifying and addressing community concerns early in the planning process.

Financial

Any public consultation activities requiring funding will be drawn from the City Planning and Assessment operational budget.

People

Public consultation will predominantly involve staff resources from the City Planning and Assessment Group. Provision has been made for the attendance of project consultants at a minimum of two meet-the-planner sessions.

Environmental

Environmental matters have been discussed, where relevant.

Social

Social matters have been discussed, where relevant.

Human Rights

There are no known human rights issues associated with this report.

Alignment with Council's Policy and Plans

The officer recommendation aligns with the objectives contained in Council’s Corporate Plan: Our Future Redlands – A Corporate Plan to 2026 and Beyond. This includes enhancing the unique character and liveability of our city for its communities through co-ordinated planning, place making, and management of community assets.

Consultation

Consulted	Consultation Date	Comments/Actions
Councillors	16 December 2024	Project overview, including discussion of draft JROCR LAP scenarios.
Divisional Councillor	22 April 2024 and 13 November 2024	Meeting 1: Advise of project commencement Meeting 2: Project overview, including discussion of draft JROCR LAP scenarios.
Service Manager – Water and Wastewater Infrastructure Asset Management	29 August 2024 and 17 October 2024.	Meeting 1: Project scope for infrastructure capacity assessment. Meeting 2: Discuss findings and implications of draft infrastructure capacity assessment.
Principal Adviser – Infrastructure Planning and Charging	29 August 2024	Discuss findings and implications of draft infrastructure capacity assessment.
Senior Transport Planner	11 July 2024	Discuss findings of access and movement strategy and project implications.

Options

Option One

That Council resolves to undertake a preliminary phase of non-statutory public consultation on the Jones Road to Old Cleveland Road Local Area Plan scenarios in Attachment 5, for a minimum period of 25 business days.

Option Two

That Council resolves not to proceed with the Jones Road to Old Cleveland Road Local Area Plan or to undertake a preliminary phase of non-statutory public consultation.

Officer's Recommendation/Council Resolution 2025/6

Moved by: Cr Tracey Huges

Seconded by: Cr Wendy Boglary

That Council resolves to undertake a preliminary phase of non-statutory public consultation on the Jones Road to Old Cleveland Road Local Area Plan scenarios in Attachment 5, for a minimum period of 25 business days.

Carried 11/0

Crs Jos Mitchell, Wendy Boglary, Peter Mitchell, Paul Gollè, Lance Hewlett, Shane Rendalls, Julie Talty, Rowanne McKenzie, Tracey Huges, Jason Colley and Paul Bishop voted FOR the motion.