City of
Cockburn
TOWN PLANNING SCHEME NO. 3
AMENDMENT NO. 81
DEVELOPMENT CONTRIBUTION PLAN REPORT
As modified and adopted by Council
November 2010
REPORT ON DEVELOPMENT CONTRIBUTION PLAN No
13
This report sets out information relative to proposed Developer Contribution Plan (DCP) No
13 that is the subject of Amendment No 81 to the City of Cockburn Town Planning Scheme
No 3. The report included in the Amendment documents sets out general information
regarding the amendment and should be read in conjunction with this document which sets
out the supporting information including that required under State Planning Policy 3.6
Developer Contributions for Infrastructure.
1. DEVELOPMENT CONTRIBUTION AREA (DCA 13)
The development contribution area is shown on sheet 26 of the scheme map as DCA 13
which is part of Amendment No 81. As well as delineating the contribution area, sheet 26
also shows the regional, sub regional and local catchment areas referred to in the DCP to
ensure clarity. A copy of sheet 26 of the Scheme Map is included in Appendix No 1.
2. PURPOSE
The purpose of the development contribution plan is to;
(a) enable the application of development contributions to develop new and the
upgrading of existing community infrastructure which is required as a result of
increased demand generated by subdivision/development in the development
contribution area;
(b) provide for the equitable sharing of the costs of infrastructure and administrative
items between owners;
(c) ensure that cost contributions are reasonably required as a result of the subdivision
and development of land in the development contribution area.
The Plan for the District is the relevant document which coordinates the timely provision of
the community infrastructure items.
3. PERIOD OF THE PLAN
It is proposed that DCP 13 operate until 30 June 2031. However the DCP may also be
extended for further periods (with or without modification) by subsequent Scheme
Amendments.
The reason for the time frame is as follows;

The community infrastructure items included in the DCP are being planned and
provided on the basis of the needs of the ultimate community which will be substantially
achieved by 2031.

It is fair and equitable that all development that has been taken into account in
assessing the need for community infrastructure actually makes a contribution to that
infrastructure. A longer operation period will achieve that objective.

When preparing the Plan for the District which details the provision of community
infrastructure, Council will have confidence that it will be able to meet its commitments
to the provision of community infrastructure as the provision of funds through the DCP
will be assured.

Land owners will be treated equitably regardless of when they develop.

When the stated period of operation is reasonably short it is likely that some owners will
defer subdividing or developing in a hope of avoiding making a contribution. As much of
the land to be subdivided or developed within the City of Cockburn is owned by private
owners rather than development companies, this is a real consideration and has the
potential to significantly affect the development rate and availability of land in the area.
This would be counter productive to State Government objectives of maintaining an
adequate supply of developed land and moderating price increases, as well as
promoting urban consolidation which is a clear priority under the State Government’s
Directions 2031 and Beyond Strategic Plan for Perth and Peel.

The adoption of a short time frame creates constant uncertainty for landowners and the
Council as to the possible outcomes of the Scheme Amendment process required to
change the period of operation. Adoption of a longer time frame removes that
uncertainty. In this regard it is noted that the average time frame to amend a Town
Planning Scheme is 12 to 18 months and accordingly to ensure continuity of the DCP
with a short period of operation, an amendment would need to be initiated soon after
the gazettal of the DCP and well in advance of the expiry date. This is an unnecessary
and time consuming administrative burden for both the local government and the
Department of Planning. It is also noted that being one of the first amendments to
introduce community infrastructure contributions on this scale, it may be several
months before Amendment No 81 is gazetted.

The City has seven existing DCP’s which have been operating for some 12 years. Over
that period, development within the DCP areas has proceeded to varying degrees. Only
DCA 3 Gaebler Road is well advanced and could be wound up within the next few
years whilst others are less than 50% complete and could be another 10 years or so
before realising full development. Based on the experience with existing DCP’s
administered by the City, a 20 year period of operation for DCP 13 is considered
justified.

Given the period over which the community infrastructure is to be provided and that the
timing of the infrastructure items takes into account the anticipated development rates
and patterns in each catchment area, all residents will benefit from the payment of the
contribution towards the provision of the community infrastructure items and the
provision of the infrastructure item.

The period reflects a widely accepted planning horizon. In this regard it is consistent
with the population/dwelling forecast horizon undertaken by id Consulting for the City,
State Government forecasts and the State Government’s blue print for development –
Directions 2031.

The use of 2031 (20 years) as the period of operation as opposed to 2021 (10 years)
will not disadvantage developers as the average per dwelling cost contribution is the
same regardless of which time horizon is selected as shown in the following
calculations.
Average DCA cost contribution for each new dwelling based on 2021 time horizon
Current - 2009
Forecast - 2021
Forecast - 2031
Dwellings(Du’s)
(Note 2)
Increase
in
Du’s for period
32,886
46,228
52,442
13,342
6,214
%
Contribution
of total cost
62.710
25.441
11.849
Distributed
total
estimated Cost of
Infrastructure
($159,882,060)
Average DCA cost
contribution
per
new dwelling
40,660,330
Beyond time frame
$3,047
Average DCA cost contribution for each new dwelling based on 2031 time horizon
Dwellings(Du’s)
(Note 2)
Current - 2009
Forecast - 2031
32,886
52,442
Increase
Du’s
period
19,556
in
for
%
Contribution
of total cost
62.710
37.290
Distributed
total
estimated
cost
of
Infrastructure
($159,882,060)
Average
DCA
cost contribution
per new dwelling
59,597,646 (Note 3)
$3,047
The reason the average DCA contributions are the same for both time horizons is due
to the fact that if the time period is reduced then, as per SPP 3.6, you also need to
adjust the contribution calculation to take into account future dwellings. The above
shows that whilst the average contribution per dwelling remains the same, the amount
raised by the City will be some $18,937,316 (Note 1) less if the 2021 time horizon is
adopted. This is the amount that is attributable to the estimated 6,214 dwellings that
would be developed between 2021 and 2031 and the DCA period is not extended. As
previously stated, a reduced time horizon will create unnecessary uncertainty for both
developers and Council.

In the event that the period of operation is reduced to 2021 and the DCA is not
extended through subsequent amendments to the Scheme, the gap in revenue of
$18,937,316(Note 1) will fall to current landowners to fund which is neither fair nor
equitable, particularly given the need and scope of the various community infrastructure
items has been determined on the ultimate number of dwellings and resultant
population.
Note 1 Figures used above based on draft cost contribution schedule as initiated February 2010
Note 2 As estimated by id Consulting
Note 3 Differs marginally from detailed cost allocation due to those costs reflecting Regional, Subregional and local
allocations
4. OPERATION OF THE DCP
DCP 13 has been prepared in accordance with State Planning Policy 3.6 Development
Contributions for Infrastructure and will come into effect on the date of gazettal of
Amendment No 81.
Clause 5.4 of SPP 3.6 states that in the interim, where a local government has received
consent to advertise a DCP, land within the DCA area will be considered to be subject to
the requirements of the DCP and contributions may be calculated but the City will not be
able to collect payment until Amendment No 81 is gazetted. The Department of Planning
have advised, since the endorsement of the proposed Amendment 81 by Council, that
arrangements to pay contributions should be made for proposals.
Therefore it is proposed that the City require the inclusion of conditions and explanatory
advice notes on subdivision and development approvals noting that DCP13 is under
consideration. This will ensure that at subsequent stages, for example subdivision
clearance or building licence, that landowners are aware of their liability for contributions
should DCP 13 be gazetted. Legal agreements will be required to secure this.
Following gazettal of Amendment No. 81, a condition will be included on subdivision and
development approvals requiring payment of the DCA contribution which would be at the
time of seeking clearance to a Deposited Plan or Strata Plan in the case of subdivision or at
the time of issuing a building licence where there is no prior subdivision or subdivision is not
proposed. This is consistent with Clause 6.3.5 of the Scheme.
5. APPLICATION REQUIRMENTS
Where a subdivision, strata subdivision including both built and/or strata lots or a
development application is lodged for the extension of an existing land use is lodged which
related to land which this DCP applies, Council shall take the provisions of the DCP into
account in making a recommendation on or determining that application.
6.
COMPLIANCE WITH THE PRINCIPLES UNDERLYING
CONTRIBUTIONS AS SET OUT IN CLAUSE 5.2 OF SPP 3.6
DEVELOPMENT
1. Need and the nexus
The need for each item of infrastructure included in the DCP and the connection between
the development and the demand created by new development within the City is clearly set
out in the individual Infrastructure Item sheets set out in Appendix 2 of this report.
2. Transparency
The following has been adopted to ensure transparency in the method for calculating and
applying the contribution and that the DCP application is simple to understand and
administer;

The contribution is in respect to new dwellings to be created between 2009 and 2031.
The number of existing and future dwellings was independently prepared by id
Consulting which specialises in demographic forecasting. Appendix 3 provides details
of the forecast dwellings. In some cases suburbs such as Bibra Lake were manually
split between Bibra east and Bibra west (St Pauls) by the City. Details of the forecast
can be accessed from www.id.com.au or through a link on the City’s web site.

The assessment of the regional, sub-regional and local catchments contained in
Appendix 4 clearly shows the number of existing and future dwellings and expresses
the future dwellings for each suburb as a percentage of the total forecast dwellings to
ensure that the cost of each infrastructure item is equitably apportioned according to
the growth potential in each suburb.

Sheet 26 of the Scheme Map clearly shows the regional, sub-regional and local
catchment areas ( Appendix 1).

The location of infrastructure items included in the DCP is clearly shown on the
Community Infrastructure Facilities Map (Appendix 5 – Plan 1) and the Bicycle
Network Plan (Appendix 5 - Plan 2 ).

The Community Infrastructure Cost Contribution Schedule for DCA 13 (Appendix 6)
clearly shows the existing number of dwellings for each Infrastructure item to ensure
that it is clear that future dwellings are only paying for the cost attributable to future
development and not existing dwellings.
Calculation of an owner’s contribution will be based on the number of new dwellings/lots
that can be created through the relevant subdivision/development application process. The
number of new dwellings/lots is then multiplied by the applicable rate for the suburb in
which the land is situated. This is the rate shown on the Community Infrastructure Cost
Contribution Schedule for DCA 13 (Appendix 6). The approach is simple to understand
particularly for landowners who wish to determine their obligations. It is also easily
assessed and administered by officers.
3. Equity
The development contribution is to be calculated on the basis of the number of
dwellings/lots that can be created through the subdivision/development application process
thus ensuring that each owners contribution is assessed on a clear and consistent basis
and thus reflective of the relative need generated by a particular development.
The plan does not make a distinction between Greenfield and Infill/revitalisation residential
development.
4. Certainty
The DCP and Community Infrastructure Contribution Schedule for DCA 13 clearly set out
the items to which subdivision/development in a particular suburb is making a contribution
to. Internal accounting will then allocate each landowners contribution to each infrastructure
item for the respective suburb on a proportional value basis of the infrastructure items.
To provide certainty on the cost of the infrastructure items, the DCP provides that the cost
of each infrastructure item is to be reviewed at least annually to reflect changes in funding
and revenue sources and indexed based on the Building Cost Index or other appropriate
index as approved by an appropriately qualified independent person.
5. Efficiency
Development contributions reflect the whole of life capital cost, but excludes running costs.
6. Consistency
The development contributions for DCA 13 will be uniformly applied across the whole DCA
area on a per dwelling basis which reflects the regional, subregional and local facilities to
be provided to service each particular area. The contribution will be levied on
subdivision/development or the extension of an existing use in accordance with clause
6.3.5 of the Scheme ensuring that whatever form of development is contemplated, the
owner/developer will make an appropriate contribution.
7. Right of consultation and arbitration
DCA 13 provisions will be advertised through Amendment No 81 thus satisfying the
requirement to consult with landowners and developers on the manner in which the
development contributions are determined.
Clause 6.3.4 (d)(ii) of the Scheme provides that an owner may request that any estimate
contained in a DCP be independently certified by an appropriately qualified person.
Clause 6.3.11(a) of the Scheme provides that any dispute between an owner and the local
government in respect to a cost contribution is to be resolved by arbitration.
8. Accountability
The costs for each infrastructure item are to be reviewed annually and the DCP updated
accordingly. The updated DCP will be available on the City’s web site and owners can
request the review of any cost in accordance with clause 6.3.4(d)(ii) and have a dispute in
respect to the required contribution determined through arbitration in accordance with
clause 6.3.11(a) of the Scheme.
A Statement of Accounts showing all revenue and expenditure for the DCP is to be
prepared for each financial year and audited by the City’s auditors. The audited statements
will be available on the City’s web site.
7.
COMPLIANCE WITH THE PROCESS FOR DETERMINING DEVELOPMENT
CONTRIBUTIONS AS SET OUT IN CLAUSE 5.5 OF SPP 3.6
The matters of need and nexus are dealt with above and in detail in Appendix 2. Other
matters are addressed below.
Catchment Areas
The catchment areas served by the infrastructure items have been divided into either
Regional, Sub -Regional or local depending on the nature of the facility. The catchments
areas are shown on Sheet 26 of the Scheme Map.
Regional uses are generally specialised higher order uses and because people are
prepared to travel reasonable distances to these facilities, they serve the whole of the City.
Accordingly there is generally only one such facility provided within the City. Regional uses
included in the DCP are as follows;








Coogee Beach Surf Club
Wetlands Education Centre/Native Arc
Cockburn Central Recreation and Aquatic Centre
Cockburn Central Community Facilities
Visko Park Bowling and Recreation Club
Coogee Golf Complex
Bibra Lake Management Plan Activities
Atwell Oval Facilities upgrade
Sub-regional uses are still high order activities but are provided on the basis of the western
and eastern residential areas. Accordingly these infrastructure items are provided in both
the eastern and western residential areas. Items considered to be of sub-regional
significance are as follows;
Sub Regional - East
 Cockburn Central Library and Community Facilities
 Cockburn Central Playing Fields
 Anning Park Tennis
 Cockburn Central Heritage Park
 Bicycle Network - East
Sub Regional - West
 North Coogee Foreshore Management Plan proposals
 Seniors and Lifelong Learning Centre
 Beale Park Sports Facilities
 Western Suburbs Skate Park
 Bicycle Network – West
 Dixon Reserve/Wally Hagen
Local uses are those that the community generally expects to be provided within their
suburb and hence there are numerous similar facilities provide throughout the City. Local
items included in the DCP are as follows;




Lakelands Reserve Clubrooms
Southwell Community Centre
Hammond Park Recreation Facility
Frankland Reserve Recreation and Community Facility

Munster Recreation Facility
Cost of the infrastructure item
The source of the cost is noted on each of the detailed sheets for each infrastructure item.
For some items plans are well advanced and detailed cost estimates have been prepared
by either the architect or a Quantity Surveyor. For others, costs estimates have been based
on preliminary concept plans and will need to be reviewed when detailed briefs and plans
have been prepared. In a small number of cases the costs have been based on that of
constructing similar facilities. This is also generally for facilities that are to be provided later
in the program.
As provided for in the DCP, the cost of the infrastructure item will be reviewed at least
annually. If during the year more detailed costings have been prepared then these would be
adopted in preference to broad based estimates. In all other instances the cost estimates
will be adjusted to reflect changes in funding and revenue sources that may have been
secured and the cost indexed based on the Building Cost Index or other appropriate index
as approved by an appropriately qualified independent person.
A Community Infrastructure Plan to be prepared
The City has adopted specific Strategic Plans which detail the need for community
infrastructure items to service the ultimate population of the City. The relevant documents
are as follows;




Bibra Lake Landscape, Recreation and Environmental Management Plan,
Bicycle Network and Footpath Plan,
Sport and Recreation Plan (2010)
Library Services Strategic Plan (2007)
In addition, information is provided in the Plan for the District.
A Capital Infrastructure Plan to be prepared.
The Plan for the District 2010-2020 which was adopted by Council in June 2010, identifies
community infrastructure to be provided within the City, details the time program for delivery
of the facilities and identifies general sources of funds.
As most of the infrastructure items are to be provided within the next 10 years, the Plan for
the District satisfies the requirement for a Capital Infrastructure Plan.
Projected growth figures for the catchment areas
The number of existing and future dwellings for the period 2009 to 2031 was independently
prepared for the City by id Consulting which specialises in demographic forecasting.
Appendix 3 provides details of the forecast dwellings. In some cases suburbs such as Bibra
Lake were manually split between Bibra east and Bibra west (St Pauls) by the City to
satisfy the allocation of local catchment items.
The forecast information can be accessed via a link on the City’s web site (About
Cockburn) or directly through the id website (www.id.com.au).
Details of existing and future dwelling numbers for regional, sub-regional and local
catchments is clearly shown in Appendix 4.
Methodology for determining the proportion of cost for infrastructure to be attributed to
future growth rather than existing areas.
The apportionment of the cost of providing the infrastructure items between existing
development and future development has been based on the number of existing and future
dwellings. The apportionment of the cost of providing community infrastructure to existing
dwellings is clearly identified on the Community Infrastructure Cost Contribution Schedule
for DCA 13 (Appendix 6) with the balance of the cost being proportionally distributed
between the various suburbs based on the potential of each. The apportionment of the
contributions in respect to new dwellings has been calculated for each catchment level, that
is, regional, sub regional and local (see Appendix 4).
8. ITEMS INCLUDED IN THE DCP
i) The following infrastructure items are included in the DCP;
Regional Facilities - All suburbs
Coogee Beach Surf Club
Wetlands Education Centre/Native Arc
Cockburn Central Recreation and Aquatic Centre
Cockburn Central Community Facilities
Visko Park Bowling and Recreation Club
Coogee Golf Complex
Bibra Lake Management Plan Activities
Atwell Oval facilities upgrade
Sub Regional - Eastern Suburbs
Cockburn Central Library and Community Facilities
Cockburn Central Playing Fields
Anning Park Tennis
Cockburn Central Heritage Park
Bicycle Network - East
Sub Regional - Western Suburbs
North Coogee Foreshore Management Plan Proposals
Seniors and Lifelong Learning Centre
Beale Park Sports Facilities
Western Suburbs Skate Park
Bicycle Network – West
Dixon Reserve/Wally Hagen Facility Development
Local - Specific Suburbs
Lakelands Reserve
Southwell Community Centre
Hammond Park Recreation Facility
Frankland Reserve Recreation and Community Facility
Munster Recreation Facility
The location of infrastructure items included in the DCP is clearly shown on the Community
Infrastructure Facilities Map (Appendix 5 – Plan 1) and the Bicycle Network Plan (Appendix
5 Plan 2). The basis for the inclusion of each item in the DCP is contained on the specific
sheet for each item in Appendix 2.
The cost of infrastructure includes all the initial capital costs associated with the provision of
the infrastructure item and excludes ongoing maintenance and operating costs of the
infrastructure.
The costs can include items such as the cost of land acquisition, planning, design and
approvals, clearing permits, clearing works, offset works, site works, servicing
infrastructure, construction of the facility including design, tendering and project
management, associated landscaping, parking and access arrangements.
ii) The following Administration costs are included in the DCP;
 Cost to prepare the Development Contribution plan and administer it for the period of
operation (including legal expenses, valuation fees, cost of design and costs estimates,
proportion of staff salaries, computer software and/or hardware required for the purpose of
administering the plan and audit fees).
 Cost to prepare and undertake an annual review of cost estimates including the costs for
appropriately qualified independent persons.
 Costs to prepare and update the Community Infrastructure Cost Contribution Schedule.
It was initially proposed to provide an estimate of the administration costs following the
advertising of Amendment No 81. Administration of development contribution plans can be
complicated and time consuming. This plan includes a number of infrastructure items, all of
which will require individual accounts to be maintained, reviewed and submitted for annual
auditing.
On reflection, it would be quite difficult to provide a realistic estimate for some of these
costs at this early stage. Therefore it is now considered prudent that over the first few
years of the operation of the DCP, City officers record the time and cost spent
administering the DCP be recorded for input into the first review of the plan. Initially, the
administration cost in the updated schedule for the proposed plan will represent the salary
package for the officer responsible for administering this DCP.
Council’s Plan for the District notes the future staffing needs of the Strategic Planning
business unit to include a Development Contributions Planner from 2012/13. This
recognises that the administration of a Developer Contribution Plan of this scale cannot be
accommodated with the current and projected workload the team has. The City’s existing
Developer Contribution Plans are administered by the Coordinator Strategic Planning and
officers from the City’s Finance team.
The salary package is shown in the updated schedule for the proposed plan. This cost is
split between each suburb, not equally, but on the average demand they generate for
facilities. For example, Leeming has a very small amount of growth (24 lots) and the
demand average on facilities is 0.123% resulting in an administration fee of $99.32 for
Leeming as a suburb (or $4.14 per dwelling). Success, which has a higher growth
proposed (1809 lots) and generates a demand average of 9.665% resulting in an
administration fee of $7,804.49 for Success as a suburb (or $4.32 per dwelling).
iii) Cost apportionment
The apportionment of the costs for regional, sub regional and local infrastructure items to
each suburb can be seen on the Cost Contribution Schedule included in Appendix 2.
9. REVIEWS
The Development Contribution Plan will be reviewed when considered appropriate, though
not exceeding a period of five years duration, having regard to the rate of development in
the area since the last review and the degree of development potential still existing. The list
of infrastructure items will be reviewed at the time of adopting the Plan of the District to
ensure the list of items aligns. Adding or deleting items from the Plan for the District will
result in the need for an amendment to TPS No 3 to make the necessary changes to DCP
No 13.
The estimated cost of infrastructure items shown on the Cost Contribution Schedule will be
reviewed at least annually to reflect changes in funding and revenue sources and indexed
based on the Building Cost Index or other appropriate index as approved by the qualified
person undertaking the certification of costs in accordance with the provisions of DCP No
13.