DEFENCE ESTATE PRINCIPLES OF DEVELOPMENT
INTRODUCTION
1.
The 2009 Defence White Paper identified five strategic basing principles that
will guide the future of the Defence estate. One of these principles is to “consolidate
units into fewer, larger more sustainable multi-user bases aimed at increasing the
alignment of functions at Joint and Service level and their capacity to support
operations.” This presents many challenges for the way the Defence estate is
developed.
2.
The White Paper also clearly references Defence’s commitment to sustainable
environmental management. A robust planning framework, including environmental
impact assessment, underpins the development of the Defence estate, securing both its
capability and environmental values into the longer term.
3.
The Strategic Reform Program (SRP) provided guidance for reforming and
improving Defence estate management through improved governance and business
process. Stewardship of the estate was reformed under five key themes, including
planning and delivery. The adoption of ‘principles of development’ is consistent with
both these themes and will provide a useful mechanism to guide and control
development of the Defence estate, including better utilisation of land, functional
alignment, consolidation of activities and reducing land use conflict.
4.
In order to achieve greater efficiencies in the long term cost of running bases
and infrastructure and to minimise the risks of poor development outcomes occurring
within the Defence estate it is crucial that additional guidance in the form of
‘principles of development’ be adopted. Application of these principles will ensure
that there is better utilisation of land, improved functional alignment, consolidation of
activities and a reduction in land use conflict across the Defence estate.
5.
A ‘principle’ in the context of the Principles of Development is a statement of a
desirable outcome which provides guidance for decisions related to development of
the Defence estate.
AIM
6.
Principles of Development will provide guidance on how the Defence estate is
to be developed. They are to be considered and generally complied with when
making decisions about development of buildings, facilities and other infrastructure
within the Defence estate. Any non compliance must be identified and justified
throughout the infrastructure asset development life-cycle.
7.
These principles do not replace any existing policy documents or statutory
requirements. In some cases they will complement and reinforce existing policies.
The principles do not contain any specific development standards, given the evolving
nature of infrastructure requirements and relevant legislation. Application of these
principles must have due regard to value-for money considerations.
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8.
The application of these principles to operational airbases shall also have regard
to the requirements to maintain airbase survivability.
9.
The Principles of Development are to be considered in preparing Corporate
Services & Infrastructure Requirement (CSIR) Part 2, Strategic Business Case (SBC)
and Detailed Business Case (DBC) documents as they will have an impact on the
design, siting and delivery of buildings and capital works.
10. The Principles of Development have been grouped under nine headings which
identify specific issues that the principles are intended to address.
11. Defence is responsible for ensuring that the resources under its control are used
wisely. For the estate this translates in part to achieving the highest and best use of
Defence land and facilities to support current and future capability, whilst
simultaneously minimising potential land use conflicts both on bases and externally.
12. The SRP comprises over 300 initiatives under 15 reform streams. Not all of
these initiatives are directly associated with cost reductions. Some of the aims of
these reforms are:



Improving decision making around expenditure;
Reducing demand for goods and services; and
Building a cost-conscious culture in Defence.
13. The Principles of Development are one of the initiatives under the Defence
estate reform stream. They have been developed to assist in giving effect to SRP
initiatives such as smarter use of resources and reducing duplication of services on a
base. The application of these principles will have either a direct or indirect
relationship to the abovementioned aims.
14. Compliance with the principles in design, siting and delivery of buildings and
capital works will facilitate long term reduction in the cost of operating and
maintaining bases. For example, adherence to some of the principles under
‘Utilisation of the Defence Estate’ will support the consolidation of kitchens/messes
which is identified in the Hospitality and Catering Services initiative. Other
principles support reduction of duplicated services and facilities which will assist in
reducing the overall operating costs of bases. Another example of the Principles of
Development supporting the SRP is the principle outlining the requirement for
developments to adopt sustainable water management practices, which will assist in
meeting the reform objective of reducing water utilities and ground maintenance
costs.
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KEY PRINCIPLES
The Principles of Development, listed under nine subject headings, are:
1. Utilisation of the Defence Estate
1.1 Objective
a. To develop the Defence estate in a sustainable manner that gives full
recognition to the value of the land from both an economic and environmental
perspective, the need to achieve the highest and best use of land and provide for the
optimum spatial allocation of land uses,
b. To recognise that the Defence estate provides the facilities which directly
enable the generation, protection and sustainment of operational capability and that
airbases function as a weapon system consisting of a number of interconnected
elements critical to air operations.
1.2 Principles
1.2.1 Optimal utilisation of the land available for development will be achieved by
increasing the overall density of development and the use of multistorey
buildings on bases where there are constraints to further development and
expansion, having regard to any existing restrictions on height and building
density.
1.2.2 The siting of all buildings and infrastructure on operational airbases, within
the vicinity of runway(s), taxiways, navigation aids, ordnance loading areas,
aircraft parking and aircraft maintenance facilities, must have regard to the
need maintain airbase operability at all times and not restrict future
development of the airbase/airfield.
1.2.3 ‘Brown field’1 sites are to be developed in preference to ‘green field’2 sites.
1.2.4
Siting of all buildings and infrastructure will comply with Zone Plans3 and be
cognisant of opportunities and constraints identified in other planning
guidance such as Bushfire Management Plans and environmental values.
1.2.5 Common use facilities are to be developed to achieve more effective and
efficient use of Defence buildings, land and training facilities.
1.2.6 Combined or shared facilities will be used for the storage and maintenance of
common equipment where practicable.
1.2.7 Consolidation of any duplicated facilities on bases.
1.2.8 Multi-user/shared facilities for training, messing, headquarters and other base
amenities are to be developed in preference to unit-specific facilities.
1.2.9 Functional relationships between the use of buildings and their locational
layout must be considered in the selection of sites for buildings and facilities.
A ‘Brown field’ site is a site which contains old and/or disused buildings or a site which has previously been
developed.
2 A ‘Green field’ site is a site which has not been previously been developed, a site that has remained vacant for a
period of more than five years, or a site which is vacant as a result of the removal of Service residence housing
from an establishment
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‘Zone Plans’ are strategic land management documents that identify and illustrate the optimal spatial
allocation of land through the use of specific land use zones to promote the orderly development or redevelopment of the Defence Estate. The plans aim to reduce land use conflicts by identifying types of
facilities and uses that are suitable within specified zones.
3
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1.2.10 Preference is to be given to the collocation of functions and amenities in lieu
of dispersed and/or unit-specific facilities as follows:
a) Units are to be located as close as practical to their
supporting/supported elements;
b) Armouries are to be centralised where possible at unit level; and
c) Collocation of office based functions into centralised ‘office blocks’.
1.2.11 Service residential housing should not be developed on Defence bases located
in capital cities or other major regional cities, particularly where the
availability of land for capability purposes is very limited.
1.2.12 Long term Living-in-Accommodation (LIA) is to be collocated within a
centralised domestic precinct(s), rather than dispersed throughout a base.
1.2.13 All buildings and facilities are to be sited to minimise potential land use
conflicts.
2. Buildings and building design
2.1 Objective
To provide cost effective, compliant, multi-functional and adaptable building
solutions which are responsive to the environment in which they are located and are
efficient in their use of resources both in the construction and operation phases, whilst
also providing healthy and safe work places for Defence employees.
2.2 Principles
2.2.1 Simplicity of design and cost effective construction solutions are to be adopted.
Unnecessarily sophisticated, complex or expensive designs for facilities are to
be avoided, particularly where they are likely to result in underutilisation.
2.2.2 Buildings should be designed so that evolving technologies, such as solar
arrays, other renewable energy sources and/or water saving devices can be
incorporated into the building at the time of construction or in the future.
2.2.3 All building design will employ a whole-of-life basis, with sufficient flexibility
to accommodate cost-effective changes of use throughout the life cycle.
2.2.4 All architecture is to be responsive to the surrounding geographical,
environmental and historical context.
2.2.5 Where appropriate, adaptively re-using heritage listed buildings shall be
considered as a preferred option for a facilities solution on bases in order to
maintain the heritage values of the Defence estate in the most cost effective
manner.
2.2.6 The use of generic type building design is to be considered where compliance
with principles 2.2.1, 2.2.2, 2.2.3, 2.2.4 and 3.2.2 can also be achieved.
2.2.7 All buildings and infrastructure within the vicinity of an airfield must be
designed having regard to the need to protect restricted airspace, retain areas
required to park and manoeuvre aircraft whilst on the ground, maintain the
operational efficiency of navigation aids, radar and explosive ordnance
loading areas.
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2.2.8 Office accommodation is to be designed to provide the most efficient and
effective use of floor space, whilst having regard to the functional
requirements of any specialist activities or functions to be performed.
2.2.9 Buildings/facilities are to be designed so that compliance with occupation
health and safety requirements can be achieved, providing workplaces which
minimise hazards and/or risks for Defence employees.
2.2.10 The use of temporary transportable/modular type buildings as an option for the
provision of facilities on the Defence estate is generally not supported.
3. Sustainability
3.1 Objective
To encourage the construction of buildings and infrastructure which are ecologically
sustainable including taking account of life-cycle costs, promoting efficient resource
use and minimising impacts on the environment.
3.2 Principles
3.2.1 In planning for future development and redevelopment, particular emphasis is
to be placed on cost-effective provision and management of existing and new
buildings, infrastructure and services, taking into account whole-of-life4 and
whole-of-system5 costs.
3.2.2 All buildings are to be designed to achieve efficiencies in the use of potable
water and energy, and to minimise waste generation. Opportunities to use
materials with recycled content should be considered where appropriate.
3.2.3
The planning, design and siting of facilities must minimise the potential for
air, ground, water, noise, chemical and radiation pollution and biosecurity
impacts to protect human health and the environment.
3.2.4
The pattern of development within Defence establishments should consider
land capability constraints resulting from topography, soils, geotechnical
factors, drainage, natural hazards including bushfire, microclimate, the
sensitivity of existing ecosystems and site heritage values, (including
indigenous heritage).
3.2.5
Development should seek to minimise Defence’s environmental footprint,
including greenhouse gas emissions. Innovative design elements, such as
energy efficiency, landscape, transport and ergonomic initiatives should be
considered in order to increase efficiency and productivity, and reduce
Defence’s environmental footprint.
4
Whole-of-life cost is a technique for examining and determining all direct and indirect costs, of designing,
building and the facility management (operating, maintenance, support and replacement) of a construction
throughout its entire life including disposal costs.
5 Whole-of-system cost considers every aspect of a situation and determines how each part of a whole system
interacts with all other parts. This technique helps determine the parts that work together the best to form an
efficient whole system, which should be reflected in the design and decision-making.
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4. Amenity
4.1 Objective
To promote quality living and working environments on Defence establishments.
4.2 Principles
4.2.1 The design and siting of all facilities shall provide and maintain a high level of
amenity enhancing the productivity and occupational health & safety of all
personnel.
4.2.2 In order to provide safe working environments facilities must be designed and
sited having regard to the need to:
a) provide safe separation distances from Explosive Ordnance storage
and handling areas/facilities,
b) minimise the impact of any exposure to aircraft noise, and
c) minimise exposure to radiation hazards.
4.2.3
All Living-in-Accommodation blocks shall provide an area of communal open
space adjacent to the building that can be used by occupants for recreational
use.
4.2.4
Long term Living-in-Accommodation should be designed to provide an easily
recognisable sense of place through architecture, landscaping and/or
communal amenities.
4.2.5 Living-in-Accommodation on Defence establishments, particularly level 5,
should be located as far as practicable from areas subject to excessive noise
levels.
4.2.6 Playing/sports fields are to be retained on all Defence establishments where
service personnel based there are required to maintain an operation ready level
of fitness.
4.2.7 Landscaped areas are to be provided along the road frontages to all buildings
and adjacent to the main entry to administrative/command type buildings,
except where these buildings abut flight lines.
4.2.8
All landscaping is to be designed to be low maintenance and water-efficient,
taking into account whole-of-life costs.
5. Security
5.1 Objective
To develop the Defence estate in a manner that will provide and maintain a safe and
secure environment from potential threats for the protection of our people,
information, capabilities and assets.
5.2 Principles
5.2.1 Base security requirements are an integral factor to be considered in the design
and siting of all new buildings and redevelopment on Defence establishments.
5.2.2 A layered security approach is to be considered for the siting of buildings,
with more highly security-categorised assets located centrally and lower threat
assets on the perimeter of a base.
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5.2.3 Facility design should be informed by relevant security risk assessments and,
where appropriate, incorporate effective passive security measures.
5.2.4 Base entry precincts shall be designed to include provision for traffic queuing,
vehicle rejection/egress areas, blast-protected search bays, and base perimeter
parking.
5.2.5 Museums, chapels, cadet and other community related facilities are to be
located within base entry precincts to minimise the need for family members
and the general public to access the main operational, operational support and
training zones of bases.
5.2.6 Access to service residential housing areas located within Defence
establishments shall be provided so that vehicle and pedestrian routes do not
traverse either the operational, operational support or training zones of the
base.
6. Movement and access
6.1 Objective
To recognise the importance and primary use of internal transport networks and
ensure appropriate vehicle and pedestrian access, both external and internal, is
provided for developments having regard to the types of vehicles that will be used on
the base.
6.2 Principles
6.2.1 Internal roads networks used for the transportation of Explosive Ordnance
(EO) and/or refuelling tankers should not be use as the primary access route
through a base or too residential, recreational or community facilities.
6.2.2 All development proposals that will generate additional vehicle and pedestrian
movements to/from, or within a Defence site must address, but not be limited
to, the following matters:
a) ingress and egress for vehicles to both the establishment and
development site itself,
b) loading and unloading of vehicles, including within construction
zones,
c) predicted traffic volumes, types, risks/safety (e.g. movement of
hazardous materials) and routes,
d) desired pedestrian and cyclist access routes to and from the facility,
and
e) pedestrian and traffic management methods.
6.2.3 One-way road circulation should be used wherever practical to minimise the
amount of land required for large vehicle turning circles.
7. Vehicle parking
7.1 Objective
Where public transport options are limited recognise the need to provide adequate
vehicle parking on bases for all new facilities in accordance with the forecast demand
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whilst taking into account ‘SAFEBASE’ requirements and the need to minimise the
amount of land allocated for car parking.
7.2 Principles
7.2.1 Car parking should be provided for new or redeveloped/upgraded facilities,
unless a detailed car parking utilisation study has established that there is
sufficient existing structured car parking to meet the needs of Defence
personnel and visitors.
7.2.2 Siting and design of car parking areas shall comply with and facilitate where
appropriate, relevant security considerations/requirements such as perimeter
set-back distances, natural surveillance and personnel safety.
7.2.3 Centralised car parking areas are to be provided in preference to smaller
dispersed car parking areas, except where this approach is inconsistent with
heritage protection requirements.
7.2.4 Decked/multi-level car parking structures are preferable to large areas of
ground level parking, particularly on enduring bases where land is likely to be
at a premium for future development.
8. Civil infrastructure (water, sewer, stormwater, electricity & communications)
8.1 Objective
To ensure infrastructure is both designed and located to facilitate the orderly
development of Defence bases, as well as assist in the protection of water catchments.
8.2 Principles
8.2.1 All in-ground services are to be located within identified service corridors or
alternatively within road reserves, in the absence of any defined service
corridors, in order to minimise future constraints to development.
8.2.2 Water, sewer and electricity infrastructure should be installed in common
rather than separate trenching.
8.2.3 Development on any Defence establishment must not result in post
development stormwater flow exceeding pre-development flows.
8.2.4 Sustainable water management practices such as stormwater harvesting and reuse (e.g. for gardens and toilets) should be implemented in all development.
8.2.5 Where possible stormwater and drainage infrastructure (e.g. stormwater
detention basins), shall be designed to allow them to be used for dual
purposes, such as playing fields or passive recreational areas.
8.2.6 All civil infrastructure must include integrated pollution prevention measures.
9. Minimise impact of urban encroachment
9.1 Objective
To develop the Defence estate in a manner which will not result in future land use
conflicts, applies a good neighbour approach to development and minimises the
impact of urban encroachment.
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9. 2 Principles
9.2.1 The siting of all buildings/facilities within Defence establishments must have
regard to the interface between existing and future uses of adjoining land.
9.2.2 Activities within Defence establishments should to be sited so that they are
compatible with land uses external to the Defence establishment to minimise
the opportunity for future land use conflicts at the interface.
9.2.3 Where Defence establishments abut existing or proposed residential areas,
Defence will avoid siting incompatible land uses (e.g. industrial type uses such
as workshops and heavy vehicle storage/parking) within these areas. Only
activities which are compatible with residential development should be sited in
these locations.
9.2.4 Where a potential for land use conflict has been identified suitable buffers are
to be provided on Defence land in order to minimise costs associated with
addressing future land use conflicts.
9.2.5 Where sensitive land uses, such as residential, abut a Defence establishment
consideration is to be given to the siting of playing/sports fields and/or open
space on perimeter of the Defence site to provide a buffer area.
9.2.6 The design and siting of all facilities/buildings located on Defence
establishments should seek to minimise any detrimental impact on the amenity
of adjoining residential areas due to noise, odours, lighting, reflectivity of
building materials, overlooking, or overshadowing.
9.2.7 Defence shall protect the visual amenity of adjoining residential areas when
planning for new development on the Defence estate through the provision of
landscape screening or other appropriate measures along the boundary.
IMPLEMENTATION STRATEGY
15. The Principles of Development are to be considered when preparing a Corporate
Services & Infrastructure Requirement (CSIR) Part 2, as well as through the Strategic
Business Case (SBC) Development and Detailed Business Case (DBC) Development
as they will have implications for the design, siting and delivery of buildings and
capital works.
16. The Principles of Development and supporting guidelines are posted on the
Defence Estate Quality Management System (DEQMS) tool, under the Policy section,
on the Defence intranet. Linkages to the processes on the DEQMS for preparation of
Corporate Services & Infrastructure Requirements (CSIR) Part 2, Strategic Business
Case (SBC) and Detailed Business Case (DBC) will be provided.
17. Where there is any uncertainty with respect to how a principle should be applied
the ‘Guidelines for the application of the Principles of Development’ should be
consulted. These guidelines provide advice on how compliance with the individual
principles can be achieved and provide some examples of desirable outcomes.
18. To ensure adherence to the Principles of Development throughout planning,
development and delivery stages of the asset life-cycle it is intended that the Defence
Estate Committee (DEC) templates for CSIR Part 2, SBC and DBC reports be
modified to include a new section on compliance with the Principles of Development.
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This new section of the reports will require a brief statement on whether each of the
relevant principles has been met or where adherence can not be achieved provide
sufficient justification for the acceptance of the non compliance.
19. Compliance with the Principles of Development becomes another matter for
DEC consideration when approving a CSIR Part 2, SBC or DBC. DEC will consider
whether sufficient justification has been provided for any non compliance with the
Principles of Development.
20. The intent of this implementation process is to reinforce the need to have regard
to the Principles of Development in the development, design and siting of buildings
and facilities on the Defence estate.
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