South East Queensland Regional Plan 2005–2026
Implementation Guideline No. 5
Social infrastructure planning
June 2007
Implementation Guideline No. 5—Social Infrastructure Planning
Acknowledgements
This project was initiated, funded and managed by the Office of Urban Management
(OUM), with funding support provided by the Department of Communities. Simone
Cuers, Social Planner for the Office of Urban Management, managed the Guidelines
project.
The Guidelines were prepared in 2006 by Sharyn Briggs, Dee Elliott, Vanessa
Harvey and Andrea Young. They were reviewed by Phil Heywood, Associate
Professor of Urban and Regional Planning, Queensland University of Technology.
The team thanks Phil for his valued contribution.
The assistance of the Project Steering Committee was invaluable in ensuring the
currency and relevance of the Guidelines. Their development was also informed by
the participation of Queensland Government agencies, by the local governments
listed in the appendices, and by the Local Government Association of Queensland
(LGAQ). Their time and effort assisting in the development of the Guidelines is
appreciated.
It is noted that all information included in the Guidelines was current at the time of
publication. Users of the Guidelines are encouraged to contact individual agencies to
ensure information aligns with current policy.
.
© SGS Economics and Planning Pty Ltd, Elliott Whiteing Pty Ltd, Briggs and Mortar Pty Ltd,
Andrea Young Planning Consultants (the Consultants) and the State of Queensland
(the Department of Infrastructure). Copyright protects this publication. Except for purposes
permitted by the Copyright Act 1968, no part may be reproduced by any means without the
prior written permission of the Department of Infrastructure or one of the Consultants.
1
Implementation Guideline No. 5—Social Infrastructure Planning
Foreword
Rapid population growth and the introduction of the South East Queensland Regional
Plan 2005–2026 alter the context for social infrastructure planning in South East
Queensland (SEQ). These Guidelines have been developed to support planning for
social infrastructure in a consistent, timely and co-ordinated manner, and in
accordance with SEQ Regional Plan policies.
New planning mechanisms—including Local Growth Management Strategies,
structure plans, master plans and State Infrastructure Agreements—will provide the
framework for the timely delivery of infrastructure to support growth. This document
provides guidance on social planning infrastructure, including how to:
• determine what social infrastructure is needed
• develop locally appropriate levels of service
• address regional planning and policy imperatives
• deliver appropriate levels of infrastructure through integrated social
infrastructure planning processes.
The document includes detailed guidance on planning considerations, including
comparative rates of provision (intended as indicative only). Whilst a comparative
rate of provision may give an indication of a facility being required, further detailed
planning is required to determine the best response to meet community needs. Such
a response may be an expansion of existing facilities in an adjacent community,
delivery through outreach services, or provision of a new facility.
Co-ordination of planning and delivery between the range of responsible agencies is
critical to timely, consistent provision of social infrastructure. These guidelines are
intended to assist in developing a better shared understanding of planning processes
and requirements.
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Implementation Guideline No. 5—Social Infrastructure Planning
Table of Contents
1
2
3
4
5
Introduction
8
1.1
Need for Guidelines
8
1.2
Structure of the Guidelines
9
1.3
Social Infrastructure Defined
10
Regional Planning Context
11
2.1
South East Queensland’s Challenges
11
2.2
South East Queensland Regional Plan
12
2.3
Integrated Planning Act 1997
14
2.4
Regional Plan Implementation
14
2.4.1
SEQ Infrastructure Plan and Program
15
2.4.2
Local Growth Management Strategies
15
2.4.3
Structure Plans
15
2.4.4
State and Local Infrastructure Agreements
15
2.4.5
Priority Infrastructure Plans
16
2.4.6
Infrastructure Charges Schedules and Other IPA 1997 Infrastructure Measures
16
Social Infrastructure Planning Framework
17
3.1
Planning Process
17
3.2
Hierarchy of Provision
17
3.2.1
Neighbourhood
19
3.2.2
Local
19
3.2.3
District
20
3.2.4
Local Government Area Wide Infrastructure
20
3.2.5
Regional / Sub-Regional
21
3.3
Urban and Rural Settlement Typologies
3.3.1
City Centres
21
3.3.2
Activity Centres
22
3.3.3
Greenfield Communities
22
3.3.4
Infill Communities
23
3.3.5
Rural Centres
23
3.3.6
Rural Residential
24
21
Participation in Planning
25
4.1
Community Participation
25
4.2
Local Government Participation
27
4.3
State Government Participation
28
4.4
Commonwealth Government Participation
29
Profiling
30
5.1
Community Profiling
30
5.1.1
Undertaking Demographic Analysis
30
5.1.2
Analysing the Existing Population
30
5.1.3
Analysing Population Characteristics
32
5.1.4
Analysing Population Projections
34
5.1.5
Assessing Settlement Patterns and Catchment Areas
34
3
Implementation Guideline No. 5—Social Infrastructure Planning
6
7
8
9
5.2
Inventories of Existing Facilities
35
5.3
Data Access and Management
37
5.3.1
GIS Mapping
37
Analysis and Assessment
39
6.1
The Nature of Need
39
6.2
The 5 Steps of Needs Analysis
39
6.2.1
Step 1: Analysing Data from Profiling and Consultation
40
6.2.2
Step 2: Spatial Analysis of Need
40
6.2.3
Step 3: Developing Locally Appropriate Standards of Service
41
6.2.4
Step 4: Identifying Existing and Future Needs
46
6.2.5
Step 5: Validating and Reporting Findings
46
6.3
Guiding Principles for Determining Infrastructure Requirements
47
Planning Considerations
50
7.1
Considerations for Different Typologies
50
7.1.1
Social Infrastructure in City Centres/Activity Centres/TOCs
50
7.1.2
Social Infrastructure in Greenfield Areas
52
7.1.3
Social Infrastructure in Infill Areas
53
7.1.4
Social Infrastructure in Rural Centres
55
7.1.5
Social Infrastructure in Rural Residential Areas
56
7.2
Design Considerations
57
7.3
Considerations for Specific User Needs
58
7.3.1
People with Disabilities
58
7.3.2
Children
58
7.3.3
Young People
58
7.3.4
Older People
58
7.4
Detailed Considerations for Services
59
Implementation
60
8.1
Funding Context and the Requirement for Innovation
60
8.2
Roles and Responsibilities
62
8.3
Linking to Statutory Planning, Funding and Delivery Mechanisms
63
8.4
Links to Other Local Government Processes
66
8.5
Community Capacity Building
67
8.6
Partnerships
68
8.7
Monitoring
69
Resources
71
9.1
Profiling and Analysis
71
9.2
Participation
72
References
74
List of Acronyms
77
Glossary
78
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Implementation Guideline No. 5—Social Infrastructure Planning
Appendix 1: Planning Considerations for Specific Facilities
82
Aged Care Service/Respite Centre
83
Ambulance
84
Art Gallery
85
Cemetery/Crematorium
86
Child Care Centres
87
Community Centres/Civic Centres
88
Community Health Precincts, Hubs, Centres and Services
89
Correctional Services
91
Courthouses
92
Exhibition/Convention Centre
93
Fire and Rescue
94
Hospital—Public
95
Kindergartens
96
Libraries
97
Museum
98
Out-of-School-Hours Care
99
Performing Arts Spaces (Performing Arts Centres/Arts Workshops)
100
Police
101
Postal Services
102
Primary Schools—Public
103
Religious Facilities
104
Secondary Schools—Public
105
TAFE (Technical and Further Education) College
106
Youth Centre/Service
108
Appendix 2: Types of Services
109
Family Support and Child Protection
109
Services for Young People
109
Services for People with Disability
109
Services for Older People
109
Community Health and Safety
109
Cultural Services
109
Appendix 3: Examples of Innovation in Community Facilities and Service
Provision
110
Appendix 4: Funding Sources
114
Local Government Options
114
Infrastructure Charges
114
Infrastructure Agreements
114
General Rates
114
Special Rates or Charges
115
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Implementation Guideline No. 5—Social Infrastructure Planning
State and Commonwealth Government Funding and Grants
115
State and Commonwealth Tax Transfers
115
Grants
115
Department of Communities (State)
115
Department of Families, Community Services and Indigenous Affairs
(Commonwealth)
115
Department of Transport and Regional Services (Commonwealth)
116
Department of Communication, Information and the Arts (Commonwealth) 116
Australia Council for the Arts (Commonwealth)
117
Department of Education, Training and the Arts (State)
117
Department of Veteran Affairs (Commonwealth)
117
Department of Local Government Planning, Sport and Recreation (State)
117
Appendix 5: Notes for Implementation Section
120
Local Growth Management Strategy Requirements
120
Development Infrastructure Defined (Integrated Planning Act 1997)
120
Impact Mitigation Payments
121
Negotiated Infrastructure Agreements
123
Designating Community Infrastructure
124
Suggested Protocol for Designating Community Facilities
124
Appendix 6: State and Local Government Participation in Developing the
Guidelines
126
6
Project steering committee
126
Stakeholder participation
126
Implementation Guideline No. 5—Social Infrastructure Planning
List of Tables
Table 1: Community Participation in Planning
Table 2: Local Governments’ Roles in Social Infrastructure
Table 3: Keeping Local Governments’ Knowledge Current
Table 4: State Government Agency Roles in Social Infrastructure
Table 5: Sample Analysis Format for Existing Facilities
Table 6: A Framework for Understanding Need
Table 7: Comparative Rates of Provision—Hierarchical Model
Table 8: Integration to Develop Desired Standards of Service
Table 9: Template for Reporting Existing and Future Needs
Table 10: Template for Reporting Required Infrastructure
Table 11: Suggested Tasks for Monitoring Progress
26
27
27
28
37
39
43
45
46
47
69
List of Figures
Figure 1 Implementation Tools
Figure 2 Social Infrastructure Planning Process
Figure 3 Mechanisms that Assist in the Provision of Social Infrastructure
15
18
61
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Implementation Guideline No. 5—Social Infrastructure Planning
1
Introduction
1.1
Need for Guidelines
The South East Queensland Regional Plan 2005–2026 and related South East
Queensland Infrastructure Plan and Program 2006-2026 (SEQIPP) has introduced a
stronger framework for co-ordinating the timely delivery of infrastructure to support
urban growth. Each local government in SEQ is now preparing a Local Growth
Management Strategy (LGMS) identifying how growth in its area will be consistent
with the SEQ Regional Plan’s policies, including social infrastructure provision.
Over the past decade, SEQ has experienced strong population growth combined with
increasing competition for funds for infrastructure. The increased demand for
resources, and in some places a lack of data or lack of co-ordination, has left
communities waiting for extended periods for some components of social
infrastructure. This situation is being progressively addressed through increased
government funding for critical social infrastructure, community capacity building, and
a range of new co-ordination and information mechanisms for planning. There is
also increasing evidence of more innovative and cost-effective models of
infrastructure delivery, including co-location, joint ventures and cross-subsidy
developments.
Whilst the SEQIPP establishes long-term commitments by the Queensland
Government for regional health and education infrastructure, other facilities and
services are planned at the local and district level through a combination of local
government, State Government and community agency processes.
The intention of these Guidelines is to provide agencies with non-statutory social
infrastructure planning guidelines including:
•
•
•
the process of planning social infrastructure
considerations for different communities
needs analysis frameworks, including community profiling and comparative rates
of provision
specific delivery mechanisms under the SEQ Regional Plan.
•
It is expected the Guidelines will assist local, State, community and private agencies
charged with responsibility for:
•
•
•
•
•
•
social infrastructure planning and/or provision
planning schemes and SEQ Regional Plan implementation measures
infrastructure charges scheduling and priority infrastructure planning
assessment of development and infrastructure impacts on social infrastructure
master planning communities
service delivery and facility management.
In particular, the Guidelines are intended to provide tools to support efficiency in
infrastructure planning, and the delivery of regional planning outcomes, and help to
promote a regionally consistent approach to social infrastructure planning.
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Implementation Guideline No. 5—Social Infrastructure Planning
1.2
Structure of the Guidelines
Sections 1, 2 and 3 outline the planning context and a framework for social
infrastructure planning.
Section 1: Introduction introduces the Guidelines, defines ‘social infrastructure’, and
provides an outline of the guidelines.
Section 2: Regional Planning context outlines the SEQ context, including
demographic trends, challenges for social infrastructure provision, the SEQ regional
planning framework and other statutory planning instruments.
Section 3: Social Infrastructure Planning Framework explains the social infrastructure
planning process, outlines typologies of urban and rural settlement, and provides a
hierarchy of provision of social infrastructure.
Sections 4, 5 and 6 step through the process of social infrastructure planning
(outlined in Section 3).
Section 4: Participation in Planning outlines stakeholders, principles for engagement
and references to support participation in social infrastructure planning. Participation
is a key element at all stages of the planning process.
Section 5: Profiling explains the process of describing socio-demographic and socioeconomic characteristics of existing and future communities, including demographic
analysis, facility inventories and data collection.
Section 6: Analysis and Assessment outlines the process for bringing the data from
participation and profiling together to analyse community need, the use of
comparative rates of provision, and converting community needs into infrastructure
requirements.
Sections 7, 8 and 9 cover planning considerations, infrastructure provision and
implementation, and provide references to useful resources.
Section 7: Planning Considerations provides additional information on social
infrastructure planning, including provision for typologies of urban and rural
settlement, design and locational requirements, and planning considerations for user
groups and services.
Section 8: Implementation discusses the funding context, links to statutory planning
mechanisms, and other delivery mechanisms.
Section 9: Resources lists resources for people seeking more detailed assistance.
Additional information is appended, including a Glossary and List of Acronyms,
followed by:
Appendix 1: Planning Considerations for Community Facilities
Appendix 2: Types of Services
Appendix 3: Examples of Innovation in Community Facilities and Service Provision
Appendix 4: Funding Sources
Appendix 5: Notes for Implementation Section
Appendix 6: State and Local Government Participation in Developing the Guideline.
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Implementation Guideline No. 5—Social Infrastructure Planning
1.3
Social Infrastructure Defined
Investment in social infrastructure is essential for the health, wellbeing and economic
prosperity of communities. It plays an important role in bringing people together,
developing social capital, maintaining quality of life, and developing the skills and
resilience essential to strong communities.
There is growing international recognition that investment in human and civic assets
is vital to economic prosperity and social wellbeing, reflected in the social inclusion
movements in the United Kingdom, Europe and Canada, and more locally, the SEQ
Regional Plan. Communities that offer opportunities for human development and the
capability to lead worthwhile lives have strong social capital, and act as magnets for
investment and growth.
For the purpose of these Guidelines, social infrastructure has been defined as
follows:
Social infrastructure refers to the community facilities, services and networks
which help individuals, families, groups and communities meet their social needs,
maximise their potential for development, and enhance community wellbeing.
They include:
•
•
•
universal facilities and services such as education, training, health, open
space, recreation and sport, safety and emergency services, religious, arts
and cultural facilities, and community meeting places
lifecycle-targeted facilities and services, such as those for children, young
people and older people
targeted facilities and services for groups with special needs, such as families,
people with a disability and Indigenous and culturally diverse people.
Social infrastructure planning and delivery is shared between local Governments,
Queensland Government agencies, Commonwealth agencies and community
organisations, with increasing participation from other interests, including private
sector service providers and developers.
Given the intention of the Guidelines is to provide direction on social infrastructure
planning and delivery mechanisms, the content focuses on the facilities which will
house and promote the development of community services and networks.
Each State and local government agency has a set of planning processes for
services and programs. The availability of particular services and programs changes
on a frequent basis. Service and program planning is thus a complex and dynamic
system, best explored in co-operation with the relevant agencies during facility
planning. Consequently, beyond the need for a facility from which to operate,
community services (e.g. disability support and family support) and community
development services are not discussed in detail in this Guideline.
Affordable social housing is also acknowledged as a very important component of
social infrastructure, but is not included in the Guidelines as it was considered to
comprise a separate and large body of work.
Appendix 1 provides detailed planning requirements for 26 facility types. The
Guidelines focus on planning for facilities operated by the public and community
sectors, but take into account the role of private facilities in catering to community
needs.
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Implementation Guideline No. 5—Social Infrastructure Planning
2
Regional Planning Context
2.1
South East Queensland’s Challenges
This section outlines the SEQ
context, including
demographic trends,
challenges for social
infrastructure provision, and
the planning framework
provided by the SEQ
Regional Plan and related
statutory planning legislation.
South East Queensland (SEQ) is currently Australia’s
fastest-growing metropolitan region, and significant
population growth in the region is forecast to continue
well into the future. In 2006, SEQ’s population was
around 2.7 million people, and was estimated to grow by
some 50,000 people per annum for at least the next 20
years. By 2026, SEQ’s population is expected to increase to 3.7 million.
High intra-regional and interstate migration is fuelling significant growth in SEQ.
Whilst a majority of growth is being realised in the Brisbane Local Government Area
(LGA), significant proportions of people are moving to the coastal areas and growth
is also occurring in the western corridor. Rising coastal land prices and the ‘sea
change’ and ‘tree change’ phenomena are placing growing pressures on towns in
coastal and metropolitan hinterlands.
Urban communities throughout SEQ are experiencing strong growth, in many cases
within master planned communities, but also in infill and greenfield situations.
Employment opportunities continue to be concentrated in Brisbane, and although a
level of self-sustainability in regional centres is encouraged, commuting to major
employment centres is expected to continue as a dominant trend.
In addition to rapid growth, patterns of social polarisation are occurring. Recent
growth trends and increased housing prices have seen a dispersal of lower income
households to urban fringe and rural hinterland areas, in search of affordable
housing. Inner city areas are becoming more characterised by medium to higher
income households with fewer children, whilst some traditional (and often socially
disadvantaged) lower income households within the inner city are being displaced.
Consistent with national trends, households in SEQ are becoming smaller, with more
dwellings housing fewer people. The population is ageing in most areas, and rapidly
in rural towns and coastal areas. The changing nature of the population is
generating demands for new, and in some cases different, types of community
facilities and services. Rapid population growth has made the appropriate provision
of social infrastructure difficult, as demands increase for a range of infrastructure to
support this growth.
The trends outlined above present a number of challenges for social infrastructure
planning in SEQ. These include:
•
•
•
•
•
•
Trying to meet the needs of current and rapidly expanding future populations,
particularly where population growth has outstripped the capacity of existing
social infrastructure.
Integrating land use and infrastructure planning processes to ensure
infrastructure is well located with regard to users.
Enhancing the range of infrastructure funding options available in order to provide
a secure funding environment for delivery of timely, co-ordinated social
infrastructure.
Providing adequate access to, and levels of, infrastructure to support the needs
of families settling on the affordable urban fringes and in hinterland towns.
Catering to the surge in demand for infrastructure in coastal communities from
high growth and tourism;
Responding to the loss of existing private social infrastructure, and securing land
for facilities in inner urban and urban infill areas, where land is limited and
expensive.
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Implementation Guideline No. 5—Social Infrastructure Planning
•
Maximising resource-use efficiencies, including integrated planning and new
models for facility provision.
•
Building the capacity of communities to manage social infrastructure, particularly
where there are high levels of ageing or social disadvantage, and/or commuting
populations.
There have been a number of responses to the above challenges, with some
agencies leading the way in terms of increasing access to facilities and showing
innovation in provision. A number of new models have emerged in recent years,
particularly with regard to co-location and sharing of resources (refer below). Other
examples of innovations in social infrastructure delivery, such as Private–Public
Partnerships, use of cross subsidies, infrastructure agreements and collaboration,
and service delivery, have also emerged. Case studies from Australia and overseas
illustrating these innovations are provided in Appendix 3.
New delivery models initiated by State Government agencies
Multi-tenant service centres: Multi-tenant service centres aim to help service
providers improve client services through: coordinating and/or integrating service
delivery; saving costs by sharing service delivery activities, space, administrative
resources and systems; and redirecting cost and time savings into service
delivery. They have a human service delivery focus and can take a variety of
forms, including virtual and physical centres. Pilot centres have been established
in Toowoomba, Caboolture and Mackay to provide integrated service delivery.
Health precincts: The Health precinct model supports co-location with private
health providers, non-government and other community-based services (a
Queensland Health initiative). Health precincts are currently planned for Browns
Plains, Robina, the Ipswich Region, Caboolture, the Sunshine Coast and North
Lakes.
Child and family hubs: The hub model aims to provide families with better
access to child and family support services through integrated service provision.
While the service mix varies across communities according to local needs, the
provision of quality, integrated early childhood education and care services (e.g.
playgroup, child care, kindergarten, preschool, etc) remains a core element of the
hub model. Hubs may also include: family support services, parenting support,
child health services, community activities and education services. There are
currently 24 child care and family support hubs located in various communities
across Queensland. New Early Years Centres (large hubs) are planned for
Nerang, Caboolture, Browns Plains and Cairns.
The SEQ Regional Plan provides the framework for responding to growth and
managing the development of sustainable communities. Its policy guidance and
mechanisms for delivery of social infrastructure are outlined below. These support
the use of innovative models to ensure access to social infrastructure is maximised.
2.2
South East Queensland Regional Plan
The Office of Urban Management (OUM) has released the South East Queensland
Regional Plan 2005–2026 and the related South East Queensland Infrastructure Plan
and Program 2006–2026 to manage growth in the region. The SEQ Regional Plan
provides a framework for a co-ordinated and sustainable approach to planning,
development and infrastructure provision in SEQ. A key theme in the SEQ Regional
Plan is the creation of strong communities and cohesive activity centres, with
planning and provision of social infrastructure seen as an essential element.
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Implementation Guideline No. 5—Social Infrastructure Planning
The SEQ Regional Plan is Queensland’s first statutory regional plan and has direct
relevance for plan making and development assessment activities. Powers are
provided via provisions included in the primary planning regulation act—the
Integrated Planning Act 1997 (refer chapter 2.5A, IPA 1997). The SEQ Regional
Plan also contains Regulatory Provisions to control certain types of development.
The SEQ Regional Plan covers all local government authorities (LGAs) in the region
and takes precedence over all other planning instruments.
The role of social infrastructure in contributing to the development of strong
communities is supported in the SEQ Regional Plan’s Regional Planning Vision.
Regional Planning Vision (Page 9)
‘A future for SEQ which is sustainable, affordable, prosperous and liveable; where:
•
•
Communities are safe, healthy, accessible and inclusive
There are diverse employment opportunities, and quality infrastructure and
services, including education and health
• Urban and rural areas are mutually supportive and collaborative in creating
wealth for the community
• Development is sustainable, well-designed and the subtropical character of the
region is recognised and reinforced
• Ecological and culturally significant landscapes are valued, celebrated and
protected
• The community has access to a range of quality open space and recreational
opportunities.
By 2026 SEQ is a region of inter-connected communities…It has a
progressive and well-informed community and enjoys international recognition
for leadership in fostering sustainable regional equality and prosperity.’
Several of the SEQ Regional Plan’s desired outcomes have relevance to social
infrastructure planning, however Desired Regional Outcome 6: Strong Communities
provides the primary policy framework:
Desired Regional Outcome 6: Strong Communities (Page 51)
Cohesive, inclusive and healthy communities with a strong sense of identity and
place, and access to a full range of facilities and services that meet diverse
community needs, to be delivered by (summarised): maximising access to
appropriate social infrastructure, planning for the social effects of growth and
change, addressing issues of disadvantage in communities, creating welldesigned, safe and healthy local environments, encouraging active community
participation, promoting healthy lifestyles and preventing crime, supporting
community engagement and capacity building, managing urban growth to enhance
a sense of community, and supporting the arts and cultural development through
the planning and provision of cultural infrastructure and spaces.
Desired Regional Outcome 8: Urban Development is also of particular relevance,
providing for a compact and sustainable urban pattern of well-planned communities,
supported by a network of accessible and convenient centres close to residential
areas, employment locations and transport, to be delivered by, among other things,
regional activities centres that focus employment and community services in wellplanned, vibrant and accessible centres.
The regional land use pattern described in the SEQ Regional Plan is also relevant to
social infrastructure planning and provision. The SEQ Regional Plan assigns all land
in SEQ to one of four land use categories: Urban Footprint; Regional Landscape and
Rural Production Area; Rural Living Area; or Investigation Area. These areas are
identified in the Regulatory Maps available on the OUM website.
13
Implementation Guideline No. 5—Social Infrastructure Planning
The SEQ Regional Plan supports the development of sustainable urban
environments within the Urban Footprint that provide a range of community services
and employment, recreational and housing opportunities. As such, it is the intent of
the SEQ Regional Plan for social infrastructure to be located within the Urban
Footprint.
2.3
Integrated Planning Act 1997
The Integrated Planning Act 1997 (IPA) is the primary legislation guiding planning
and development assessment in Queensland. It is a whole-of-government framework
which aims to deliver comprehensive and integrated assessment and decisionmaking for the benefit of all communities within Queensland.
Infrastructure planning is an integral and fundamental component of land use
planning and the preparation of planning schemes. It is recognised that a major
influence on the efficiency of infrastructure provision is how widely urban growth is
dispersed and the sequence in which it occurs.
The IPA provides a range of powers for imposing charges, conditions and
agreements relating to development infrastructure. It also limits development
infrastructure to the networks that provide basic and essential facilities and services
to ensure the safe, healthy and efficient functioning of local communities.
Development infrastructure is defined as the land or works, or both land and works,
for urban water cycle management infrastructure, transport infrastructure, public
parks infrastructure, and local community facilities, including, for example, community
halls or centres, public recreation centres and public libraries, predominantly
servicing the local area. In addition, the IPA introduced the process of ‘designation’
for community facilities. This allows responsible authorities to identify land that is
likely to be required for community facilities. More detail on IPA planning
mechanisms is included in Section 8.
2.4
Regional Plan Implementation
To achieve the objectives set out in the SEQ Regional Plan, co-operation by all levels
of government, communities and the private sector is required. In recognition of this,
the SEQ Regional Plan is supported by a range of implementation tools including:
•
•
•
SEQ Infrastructure Plan and Program
Local Growth Management Strategies (LGMS)
Structure Plans, potentially linked to State and Local Infrastructure Agreements.
These implementation tools are expected to inform and be incorporated into a Local
Government Authority’s planning scheme and related local and State Government
plans, strategies and policies.
The tools and their relationship to local and regional planning instruments are
outlined in Figure 1 and briefly described below. Further details regarding the
instruments are provided in Section 8.
14
Implementation Guideline No. 5—Social Infrastructure Planning
Figure 1 Implementation Tools
SEQ Regional Plan
SEQ Infrastructure Plan & Program
For each SEQ Local Government Authority
LGMS
Priority Infrastructure Plan
Potential State Infrastructure Agreement
Structure Plans
Planning Scheme
2.4.1
Potential Local Infrastructure Agreement
Other Local Government Plans,
Strategies and Policies
SEQ Infrastructure Plan and Program
The SEQ Infrastructure Plan and Program (SEQIPP) has particular importance in
delivering the objectives of the SEQ Regional Plan. The SEQIPP identifies committed
and proposed transport, water, energy, and social infrastructure of major regional
significance. The SEQIPP includes State and Commonwealth government projects
and is linked to the State Government budget process. The SEQIPP is reviewed and
updated regularly to assist in achieving the objectives set out in the SEQ Regional
Plan.
2.4.2
Local Growth Management Strategies
In addition to setting the scene for development and planning, the SEQ Regional
Plan includes total dwelling targets and infill dwelling targets for each Local
Government Area (LGA) within the region. Local Growth Management Strategies
(LGMSs) are defined in the SEQ Regional Plan as ‘a tool to assist local government
to implement the regional plan at the local level, in consultation with local
communities’, and are expected to show how LGAs will achieve the targets and other
urban development policies set out in the SEQ Regional Plan.
2.4.3
Structure Plans
The Regional Plan recognises that land suitable for urban development is a finite
resource. To ensure that greenfield and redevelopment sites are developed
efficiently and contribute to sustainable growth, the SEQ Regional Plan requires that
all major new development areas have an approved Structure Plan (SP) prior to
development. The SPs will set out the overall intent for development, determine
infrastructure demands, nominate key sites for critical infrastructure, and show how
the infrastructure will be provided and/or funded. Once gazetted, a SP will be
included in the SEQ Regional Plan and have the same effect. An ‘infrastructure
proposal’ is an ‘essential element’ of the SP, and must be consistent with the SEQ
Infrastructure Plan and Program. Agency input regarding appropriate site locations
and overall levels of provision of social infrastructure should be sought when
preparing a SP.
2.4.4
State and Local Infrastructure Agreements
Where the Queensland Government is providing major new infrastructure to lead
development in SEQ, land owners and developers of new areas who stand to benefit
significantly from the development may be required to contribute to infrastructure
provision through a State Infrastructure Agreement (SIA).
An SIA is ‘…a binding agreement between the State government and/or land owners,
developers and Local Government regarding the provision or supply of infrastructure.
It enables infrastructure to be supplied when it is required by the community.’ (Draft
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Implementation Guideline No. 5—Social Infrastructure Planning
for Consultation —SEQRP Implementation Guideline No. 4: Structure Plans).
A Local Government may also enter into a Local Infrastructure Agreement (LIA) with
land owners and/ or developers. These agreements are voluntary and relate to
master planned areas in single ownership. The LIA can nominate a range of
infrastructure, including local and State-provided works. Examples of infrastructure
agreements in SEQ include the master planned communities in Springfield (Ipswich),
North Lakes (Pine Rivers), and Kawana (Caloundra).
2.4.5
Priority Infrastructure Plans
Priority Infrastructure Plans (PIPs) are central to infrastructure planning, and must be
included in IPA-compliant planning schemes. PIPs enable local governments to
indicate areas where development is preferred and what development infrastructure
is required, based on a combination of local and State government policies,
infrastructure efficiencies and market demands.
Local governments in the region will be required to ensure their PIPs are consistent
with the SEQ Regional Plan. For the most part, development infrastructure is
provided by local government. However, the State is a fundamentally important
provider of infrastructure for urban purposes.
2.4.6
Infrastructure Charges Schedules and Other IPA 1997 Infrastructure
Measures
PIPs are generally supported by financing mechanisms called Infrastructure Charges
Schedules (ICSs) or Regulated Charges (RC). These mechanisms were introduced
with the IPA (Section 5) and allow the cost of the trunk (shared) infrastructure
identified in the plan to be recouped, based on a user-pays system. Contributions to
the cost of providing social infrastructure under the IPA need to be determined on a
catchment basis and can only recover land and limited embellishments to the land
(and not assets, e.g. libraries). Therefore, infrastructure charges will only ever
recover a portion of the costs associated with infrastructure provision. Given this
situation, other funding mechanisms need to be considered in tandem with
infrastructure charges if infrastructure is to be adequately funded.
The IPA also introduced other infrastructure measures to assist with the planning, coordination and funding of infrastructure. These include: impact mitigation payments;
Local Area Plans; and designation of land for community purposes. Further
information regarding these mechanisms and how they link to social infrastructure
provision is provided in Section 8.
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Implementation Guideline No. 5—Social Infrastructure Planning
3
Social Infrastructure Planning Framework
3.1
Planning Process
Planning and delivery of social infrastructure in
Queensland is shared between local governments,
State agencies, Commonwealth agencies,
community organisations and, increasingly, private
providers.
This section outlines the process
for social infrastructure planning,
a hierarchy of provision of social
infrastructure, and typologies of
urban settlement.
Planning needs to respond to local needs, values, and capacities, and to district and
regional dimensions, including relationships between communities and centres.
Planning also relies heavily on the knowledge and social capital within communities
and agencies, so early and ongoing engagement of stakeholders in planning is
essential.
These Guidelines provide a generic process for social infrastructure planning in
South East Queensland, including the following steps:
•
community and government participation in planning
•
analysis of current and expected future demographic characteristics, settlement
patterns and catchment areas, and the capacity of existing social infrastructure
•
analysis of existing and likely future needs for social infrastructure
•
identification of the type, location and standard of facility and service provision
required
•
linking implementation strategies to other planning mechanisms and resourcing
arrangements.
New communities will require comprehensive community plans, including social
infrastructure strategies, to ensure their long-term sustainability. This will occur as
part of master planning and structure planning exercises, but should also be
considered, at an appropriate scale, for neighbourhoods and communities which do
not warrant comprehensive master planning.
Existing communities, and particularly those that are growing or changing rapidly,
may require planning to ‘overhaul’ existing social infrastructure, respond to existing
deficits, and address emerging needs. This is particularly important for communities
adjoining new development areas. Social infrastructure planning may also be
conducted as part of social impact assessment, or in renewal planning for
communities undergoing changes as a result of major projects or changes to
economic policies.
Care should also be taken to address questions of intergenerational equity, to ensure
that future communities’ access to social infrastructure is not compromised by current
planning. This may require identifying communities’ longer term visions, aspirations
and needs, in concert with analysis of population projections, planned future
provision, innovative delivery models, and funding and staging arrangements.
Figure 2 (below) depicts the recommended process for social infrastructure planning.
Key steps are detailed in Sections 4, 5 and 6; additional planning considerations are
outlined in Section 7; and implementation mechanisms are outlined in Section 8.
3.2
Hierarchy of Provision
Community facilities and services generally operate within a hierarchy of provision,
with different scales of infrastructure servicing varying sized catchments. For
example, primary schools, child care centres and community halls generally service
local catchments; secondary schools and community heath centres generally service
district catchments; and hospitals, universities and correctional centres service subregional or regional catchments.
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Implementation Guideline No. 5—Social Infrastructure Planning
Catchments refer to both geographical areas and the size of the population serviced.
They are determined by geography (including topography, physical barriers and
distance between homes and social infrastructure), population densities,
relationships between centres (e.g. transport accessibility) and the capacity of
existing social infrastructure. It is noted that the boundaries of regions and
catchments are often difficult to define, and in some cases flexibility will need to be
practiced.
Figure 2 Social Infrastructure Planning Process
Profiling
Participation
•
Information
•
Identify existing and projected demographic
characteristics
collection
•
Identify local
values and
•
Assess settlement patterns and catchment areas
•
Describe and quantify existing social
priorities
•
Identification of
infrastructure
•
Analyse existing information on community need
expressed needs
Analysis and Assessment
•
Collate and analyse data from profiling
(community profile and facility inventory) and
•
Input to
assessment of
type, priorities,
consultation
•
patterns and catchment areas
and scale
infrastructure
Spatial analysis of provision, settlement
•
required
Analyse against comparative rates of provision
and develop locally applicable desired standards
of service
•
Review findings
•
future needs
and provide input
to strategies
Identify gaps in existing supply and assess
•
Validate findings through consultation
Provision and Implementation
•
Provide input on
appropriate local
responses
•
Contribute to
monitoring
•
Identify roles and responsibilities
•
Develop strategies and action plans
•
Establish links to statutory planning and other
delivery mechanisms
•
Funding options and mechanisms
•
Establish monitoring framework to ensure
responsiveness to changing needs
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Implementation Guideline No. 5—Social Infrastructure Planning
Referring to a hierarchy of provision helps decision-making about the types of social
infrastructure required, and the standard of service required for a particular
catchment. In SEQ, the hierarchy outlined below is usually relevant, with some
exceptions for inner Brisbane, which also accommodates infrastructure with Statewide, national and international catchments.
3.2.1
Neighbourhood
A neighbourhood is a collection of homes defined by boundaries such as major roads
and water courses, by form of development in relation to adjacent areas, and by
relationship to neighbourhood facilities. For the purposes of this Guideline, a
neighbourhood of 1000 homes (2,500–3,000 people) has been considered. A
neighbourhood should also be a walkable catchment to its facilities as outlined
below.
Facilities at neighbourhood level are generally confined to parks, bus stops and
corner stores, with support from local governments for organised community action
(such as rural fire brigades and environmental restoration). Neighbourhoods in
longer-established areas often have access to churches or halls which support
neighbourhood development. Neighbourhood houses may be established in new
areas and provide initial access to community participation and services in some
suburban and rural areas.
Social support, recreational activities and community participation develop locally
through the efforts of residents. This includes informal care for neighbourhood
children, older people and people with a disability, social activities, and
neighbourhood action to improve environmental features. It is therefore important
that a neighbourhood has some form of community space, such as a hall or local
park, as a focus for activity, and other practical and financial support for their
endeavours. It is also important to ensure that each neighbourhood has safe,
walkable connections to public transport stops and local facilities.
3.2.2
Local
Local social infrastructure is provided to meet universal health, learning and support
needs, and foster participation and social capital. The catchment for local social
infrastructure is generally in the order of 5,000–10,000 people and within a 5–10km
radius, although it can range up to 20,000 people in some circumstances (e.g. rural
centres). Local facilities typically include a primary school, a hall or neighbourhood
centre, a sport or recreation reserve, an access point for family health, income
support and home care services, a child care centre and/or kindergarten, and links to
district and regional facilities. With the exception of State-provided facilities, local
social infrastructure is usually planned in partnership between community
organisations and local governments (and with developers in the case of major
development areas) and funded through a combination of funds and in-kind support
from stakeholders.
Local facilities provide a base for citizenship and the development of social capital—
primary schools, for example, are integral to community participation, voluntary work
and social networks. They also provide links to the wider network of social
infrastructure. Planning for new local areas needs to include a facility which will act
as a catalyst for developing social capital. Depending on the scale of development,
this may range from provision of a park with club house facilities, to the conversion of
a sales office to a neighbourhood house, to construction of a small multi-purpose
centre. Such centres can provide access to social infrastructure such as information
and services through community networks and computer access. It is widely
considered that a place for the community to meet should ideally be available as
soon as the first residents move into an area. Communications infrastructure is
increasingly important to learning, service access and employment, and should be
considered as part of local social infrastructure planning.
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Implementation Guideline No. 5—Social Infrastructure Planning
3.2.3
District
The catchment of district-level social infrastructure generally ranges from 20,000–
30,000 people, with a radius of 10–50km, and often encompasses several local
centres. In some cases, larger districts of up to 50,000 people can be identified,
depending on urban form. The scale of facilities is larger to accommodate a larger
population and geographical area, and higher-order services. Areas designated in
the SEQ Regional Plan as major activity centres will increasingly assume a district
provision role.
At district level, social infrastructure is expected to address the range of universal
needs, support people’s lifecycle needs (from maternal health to comprehensive inhome services for older people) and address issues of disadvantage. Planning at
district level therefore needs to consider a diverse range of community needs—
health, education, training, support, employment assistance, emergency services,
participation and service delivery requirements.
District facilities often resource local social infrastructure (e.g. youth and community
centres may offer outreach services, and Home and Community Care service staff
travel extensively). The provision of hubs is appropriate at district level to support
local health, learning, and support networks. More specialist or advanced needs are
referred to regional or Local Government Area-wide facilities. It is never possible to
provide for all needs at the district level, and the district/sub-regional pattern of
provision is therefore an important determinant of the range of infrastructure required
at district level.
District facilities are usually planned in partnership between local governments,
community organisations and State Government agencies. With increasing
participation by developers in addressing regional policies, partnerships with the
private sector will become increasingly effective in delivering social infrastructure.
Local variations in district catchments
Catchments for district centres are particularly influenced by factors such as
distance between centres, specialities offered, and population density. Centres
outside metropolitan areas service districts and regions with larger geographical
areas. For example, Robina as a district centre may have a catchment of perhaps
15km, whilst Browns Plains may service people up to 25km away, and
Maroochydore’s catchment may extend up to 50km.
District catchments may align with Local Government Areas; however local
government boundaries are often poor predictors of social infrastructure
catchments, particularly given gaps in services, and inequities in provision levels
between geographical areas. District and regional catchments are also influenced
by the distribution of the community of interest, as people will travel further to
access specialist services (e.g. culturally appropriate education, or support for
people with dementia). These factors are important in identifying the location and
scale of district facilities.
3.2.4
Local Government Area Wide Infrastructure
Local Government Areas (LGAs) in SEQ have populations ranging from
approximately 3,500 people (Kilcoy) to more than 950,000 people (Brisbane). On the
Gold Coast, one local government services a population of almost 500,000 people,
whilst on the Sunshine Coast, three local governments service a total population of
less than 300,000 people. The number of activity centres and the size of their
catchments is therefore vastly different. Relationships between LGAs are also
variable. For example, inter-council co-operation in relation to regional infrastructure
is critical on the Sunshine Coast, whilst relationships between the adjoining Esk and
Brisbane LGAs are less relevant to social infrastructure planning.
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Implementation Guideline No. 5—Social Infrastructure Planning
It is therefore not practical to provide LGA-wide ‘rules’ appropriate to all shires and
cities. There are, however, a number of ‘essential’ types of social infrastructure for
each LGA. These include a civic/community meeting place, places for cultural
expression, centres servicing the health, wellbeing and inclusion of all residents,
major event and disaster recovery capabilities, and leadership and advocacy for local
and district infrastructure.
3.2.5
Regional / Sub-Regional
The SEQ Regional Plan designates four sub-regions—Northern (with an area of
6,583km2 and more than 600,000 people), Western (with an area of 9,456km2 and a
population of almost 300,000), Southern (with an area of 5,049km2 and around
850,000 people), and Brisbane (with an area of 1,237km2 and almost one million
people). The catchments served by regional and sub-regional facilities may therefore
range up to 200km, servicing from 300,000 to one million people and—in the case of
major hospitals and universities—more.
Social infrastructure at the regional level meets most health and community support
needs, offers the full range of education, training and employment avenues, fosters
community participation and cultural expression, and offers a high level of expertise
in supporting quality of life. This includes health infrastructure such as hospitals,
community health services and specialist health services such as mental, paediatric
and geriatric health; education facilities such as universities and TAFE institutes with
satellite campuses; the full range of government services (local, State and
Commonwealth); correctional centres; cultural infrastructure such as entertainment
centres; and major sporting facilities.
The catchment for sub-regional and regional infrastructure may extend more than
200km, particularly in the case of services such as medical and health specialities,
tertiary education and major cultural and sporting facilities. It may also provide
services (including full-cost services) to overseas residents, particularly those from
the Asia-Pacific region. Such infrastructure is generally planned and funded at State
or Commonwealth level, usually with local government participation. As such,
regional and sub-regional social infrastructure has an important role in resourcing
and supporting facilities and services at district and local level.
Whilst the range and scale of infrastructure required at sub-regional level is similar
across the four sub-regions, a greater number of sub-regional-type facilities are
required in more populous areas. Opportunities for co-location of regional
infrastructure are important to community access, efficient land use and efficient use
of staff expertise. Comprehensive public transport access to regional social
infrastructure is also essential.
3.3
Urban and Rural Settlement Typologies
A typology is a classification according to general type. The typologies provided here
describe the common characteristics of SEQ communities and indicate
considerations for social infrastructure planning in response to typical community
needs. Detailed guidance on the range of social infrastructure required for each
typology is provided in Section 7.
3.3.1
City Centres
City centres have traditionally accommodated major employment uses, entertainment
precincts, civic and cultural infrastructure and recreational facilities at the highest
level, generally for city and regional catchments (and in Brisbane’s case, for broader
catchments). These regional-scale facilities typically double as local facilities. Such
facilities are generally provided through redevelopment of existing public
infrastructure (e.g. Roma Street Parklands, Suncorp Stadium and the new Gallery of
Modern Art) and are planned by the State Government.
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Implementation Guideline No. 5—Social Infrastructure Planning
The resurgence in inner-city living at higher densities has revived the need for access
to local infrastructure in city areas, such as open space, child care, and care for
ageing people. Most housing within city centres is medium- to high-density. Such
areas may include ‘vertical communities’, ranging from hundreds of people (in a
single apartment complex) to several thousand people (in a high-rise
neighbourhood). Household sizes are at the lower end of the scale (currently an
average of 1.2–1.7 people per household in inner-city Brisbane), with couple
households in the majority, and the proportion of sole person households likely to
exceed 30 per cent. Household incomes are generally slightly higher than the SEQ
average, reflecting the generally higher level of income required to maintain housing
payments in the inner city.
Private open space is limited, and some multi-unit dwellings provide shared private
space, which can include barbecue areas, pools and gyms. Local retail spaces such
as 24-hour convenience stores, cafes and bars located on the ground floor of
apartment buildings point to a potential future outcome for social infrastructure—
provided as part of a building, at a scale which addresses the neighbourhood. This
could include a community meeting room, public internet access or recreational
facilities which encourage healthy lifestyles provided as part of the housing complex.
At a larger scale—and depending on the capacity of infrastructure servicing adjacent
suburban communities—social infrastructure such as services for ageing people,
child care and community participation options will also need consideration. Older
people living alone can feel very isolated: facilities or opportunities for people to form
social networks are essential. Facilities and services will be required within walkable
distance of multi-unit dwellings or public transport.
3.3.2
Activity Centres
The SEQ Regional Plan encourages higher density residential development to be
focussed within activity centres and around public transport nodes and corridors.
Activity centres are mixed-use residential and employment areas designed to
maximise land-use efficiency and convenience by providing high levels of access to
facilities and services, including public transport.
Activity centres will contain more medium- to high-density housing than other
communities. The number of dwellings per hectare in activity centres will range from
about 30–120 or more, whilst 30–80 dwellings per hectare are required in transit
oriented communities. They will contain a full range of household types, from sole
person (likely to be 30–40 per cent of households) to couple households (likely to
form the largest group), adult-with-children households, and group households
(including students and extended families). Household sizes are likely to be less
than two people per household.
Private open space will be provided at a rate proportional to the total gross floor area
of buildings—according to local government planning requirements. The number of
employment, education and housing options will be greater, and so there may be
more cultural and socio-economic diversity in activity centres. As such, household
incomes will be vary. Access to social infrastructure will be supported by the close
proximity of public transport routes and a greater range of services within commuting
distance. Housing prices are likely to be relatively high due to the level of amenity,
which may lead to housing stress.
3.3.3
Greenfield Communities
‘Greenfield’ refers to areas of undeveloped land in the Urban Footprint suitable for
urban development, typically in urban fringe locations. Greenfield sites with
contiguous areas of over 100 hectares are referred to in the SEQ Regional Plan as
‘major new urban areas’ or ‘major development areas’ (subsequent Office of Urban
Management policy). These can be in single or multiple ownership.
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Implementation Guideline No. 5—Social Infrastructure Planning
Greenfield areas typically attract a high proportion of families, and are more likely to
attract first home owners due to the relative affordability and the appeal of more
generous private space, parks and local services such as child care. Whereas
traditional greenfield developments were typically ‘mono-cultural’ housing estates,
greenfield developments today provide a range of housing to meet diverse housing
needs. In addition, the large greenfield development sites, or major development
areas, are required to provide higher-density and mixed-use development around
activity centres and public transport nodes and corridors. Low to medium housing
densities are common (currently averaging 8–10 dwellings per hectare)—though this
will change—and average household sizes range from 2–2.7 people. Cultural and
economic diversity is partly determined by availability of employment and service
options, but is increasing as new settlers from interstate and overseas establish
families and seek affordable housing options.
Access to social infrastructure is dependent on existing facilities and services, in
combination with infrastructure provided as part of development agreements, and on
access to public transport. Integration and co-location of facilities and services is
particularly important for greenfield communities as residents will usually need to
travel to access district-level services. The development of greenfield communities
provides an opportunity to get the planning right to facilitate the efficient delivery of
services.
3.3.4
Infill Communities
Infill refers to new development in established urban areas where the site or area is
either vacant or has previously been used for another purpose (a brownfield site) and
will be redeveloped. Infill also refers to the intensification of existing uses (e.g. an
increase in the number of dwellings per hectare). Infill may range from one additional
lot to a major mixed-use development. Consequently, the population may increase by
as many as hundreds of new households. Around 400,000 people will be housed in
infill development across SEQ over the next 20 years. It is critical to carefully weave
infill into the existing urban fabric, to minimise disruption to existing communities.
Typically, new infill development will comprise medium- to very-high-density
dwellings, with household sizes likely to range from 1–2 people per household.
Densities will be highly variable, based on the characteristics of particular sites.
Depending on the availability of smaller homes (attached or small lot), couples, small
families, ‘empty nesters’ and older people are likely to be attracted to infill areas.
Private open space is likely to be limited to smaller yards, decks or balconies, and
the provision of parks is therefore an important consideration. Employment options
are likely to be more varied than in greenfield areas, attracting more socio-economic
diversity. Incomes are likely to be average, accounting for a diverse range of
residents, but inner-city sites are likely to also attract higher income groups.
The need for social infrastructure in infill areas is dependent on the capacity of
existing infrastructure compared with the number of new residents and their particular
demands. Many existing facilities and services are already straining to cope with
growing demand, and a critical examination of the match between existing
infrastructure and new and emerging needs will be required. The characteristics of
‘old’ and ‘new’ residents also need to be examined to ensure an appropriate balance
of provision. Contributions to community infrastructure will need to be determined on
the basis of the additional demand and the different needs of residents of infill
developments.
3.3.5
Rural Centres
Generally, the average unemployment rate in rural centres is lower than the regional
average, however a lack of employment diversity may narrow the socio-economic
base and SEQ’s ongoing drought is depressing household incomes in many areas.
In rural centres, there are fewer people born overseas than there are in coastal areas
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Implementation Guideline No. 5—Social Infrastructure Planning
but on average they have more than twice the proportion of Indigenous residents
compared with Brisbane.
In most rural centres, population growth is slower than it is in coastal areas. Rural
centres are likely to include higher percentages of couple and family households than
metropolitan areas, but they have older median populations due to the movement of
young people to coastal centres. The majority of housing is detached dwellings and
occupancy ranges around 2.5 people per household. Housing densities are
generally low, with lot sizes typically ranging from 600–2,000m2. Private open space
is found at high levels but parks are important gathering places.
Social capital is likely to be healthier in most rural centres than in a city, due to the
traditional need to work together, the smaller scale of communities and their
relationships to local centres. However, centres with high levels of commuting can
have weaker social capital. Social infrastructure planning needs to ensure that
communities are assisted to respond to changing rural industries and economic and
social conditions (such as localised population growth due to the ‘sea change’ and
‘tree change’ phenomena). Because rural centres provide for extensive rural
catchments, public transport between rural and sub-regional centres is essential to
allow residents to access an adequate range of social infrastructure.
3.3.6
Rural Residential
Rural residential development is large-lot residential subdivision in a rural, semi-rural
or conservation setting. It is typically located on the fringes of urban and rural centres
at very low densities. Lot sizes are generally greater than 2,000m2 and attached
housing is rare. Private open space is abundant. Populations are smaller and
dispersed, but household occupancies are higher than in city and suburban areas, at
around 2.9–3.1 people per household. Incomes, housing stress and employment
characteristics are highly variable, depending on communities’ proximity to major
centres.
Services are provided at the most basic level (e.g. a post box and possibly a
neighbourhood house). Residents are generally expected to access social
infrastructure in urban and regional centres. Public transport links to rural residential
areas are often expensive to maintain but are sometimes considered if bus stops can
be provided for a walkable catchment.
The SEQ Regional Plan’s policy is to contain and limit areas allocated for rural
residential development. This will ensure efficient provision of services and
infrastructure (rural residential development is generally expensive and inefficient to
service) and limit further land fragmentation. Further rural residential development in
SEQ is restricted to the Rural Living Area and Urban Footprint regional land use
categories.
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Implementation Guideline No. 5—Social Infrastructure Planning
4
Participation in Planning
Participation in planning refers to
opportunities for stakeholders to contribute to
and influence planning processes and
outcomes.
Participation helps planners to draw on local
knowledge and reflect local values. It assists
in developing partnerships and alliances for
implementation, and more appropriate
models of delivery, such as co-location and
integrated service delivery.
This section outlines considerations for
participation in social infrastructure
planning, involving the range of
stakeholders necessary for integrated
planning. Care should be taken to ensure
all sectors of the community have
opportunities to be involved in planning,
and that issues of intergenerational equity
are taken into consideration when
determining infrastructure needs.
The SEQ Regional Plan recognises that community engagement is a powerful
mechanism for identifying new approaches and solutions to managing growth and
development. The SEQ Regional Plan sets out policies for community engagement
and capacity building (Desired Regional Outcome 6), including:
•
improving planning and delivery of social infrastructure by developing
collaborative working relationships
•
supporting community engagement in planning processes
•
enabling local communities to identify, articulate and enhance their sense of
place and wellbeing
•
establishing partnerships to enhance community engagement and capacity
building
•
targeting community capacity building in areas undergoing significant change.
Stakeholders include community members and organisations, local governments,
State agencies and, in some circumstances, Commonwealth agencies. Participation
by land developers and private infrastructure providers is also sometimes required.
The Queensland Government has adopted the Organisation for Economic Cooperation and Development’s (www.oecd.org) engagement model:
Information « »
Consultation
« » Active participation
This model acknowledges that information, consultation and active participation are
part of a community engagement continuum, whereby the levels of engagement and
influence progressively increase. Participation may range from comments on
information provided, to one-off input to planning, to ongoing involvement in initiatives
such as community planning or facility development. It is important to carefully
specify the community’s role in planning, to ensure expectations are clear, decisionmaking is accountable, and community members do not feel excluded from the
development of social infrastructure.
There are many good resources that provide guidance on participation processes
and practices (see Section 9). The following sections provide specific guidance on
participation in social infrastructure planning.
4.1
Community Participation
Planning processes that should consider community participation include the
development of structure plans, master plans, facility feasibility studies, and social
infrastructure strategies. Key stakeholders include community organisations
(particularly those delivering services and managing facilities), interagency networks
(such as child care, aged care and youth service providers’ networks), and
community members.
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Implementation Guideline No. 5—Social Infrastructure Planning
Participation should be preceded and accompanied by information provision.
Information should be timely in advising people of participation events and in allowing
community members to consider planning issues, and should recognise community
processes (e.g. meeting cycles and local economic seasons). Depending on the
scale of the planning exercise, methods of piquing community interest and building
awareness include:
•
newsletters and feedback forms
•
media releases, advertisements and articles
•
community events and festivals
•
briefings to community networks
•
online information and networking (e.g. websites and billboards).
The table below outlines potential inputs to planning for community members and
organisations, and examples of methods which may facilitate each input.
Table 1: Community Participation in Planning
Planning step
Profiling
Analysis and
assessment
Provision and
implementation
Inputs to planning
• Identifying capacity of social
infrastructure
• Identifying local values and priorities
• Commenting on the adequacy of
existing/ proposed models of
infrastructure provision
• Input to assessment of type and
scale of infrastructure required
• Advocating priorities for local and
regional social infrastructure
• Defining problems and identifying
solutions
• Reviewing findings and providing
input to strategies
Example methods
• Surveys
• Interviews
• Focus groups
• Websites
•
•
•
•
•
•
•
•
•
•
•
•
Contributing to the development of
locally and regionally appropriate
solutions
Identifying opportunities for
integrating new facilities with
existing adjoining uses
Identifying opportunities/interest in
joint development, design and use
of new facilities, such as community
centres
Evaluating and tracking the
effectiveness of local social
infrastructure in supporting
community wellbeing
•
•
•
•
•
•
Workshops
Phone-in and email
comment
Interagency forums
Think tanks
Working groups
Action research
Design workshops
Open days
Reference groups
Charettes
Web-based input
Displays
Submissions
Ongoing information
exchange
Particular care needs to be taken to involve community members who are underrepresented in planning, including young people, people with disability, Indigenous
people and people of culturally diverse backgrounds. This is most effectively done
through existing community networks and participation activities held in local
community venues. Schools, TAFE colleges, universities and facilities for young
people at risk are also valuable partners in achieving participation.
A means of two-way communication should be also provided (e.g. phone number
and email address) during the planning process, and the community should receive
feedback on how their input is being considered.
26
Implementation Guideline No. 5—Social Infrastructure Planning
In planning new greenfield areas and some infill areas, there may not be an existing
community to involve. Information for these areas can be derived from:
•
consulting with residents in adjoining areas, particularly communities with whom
the new residents will integrate
government agencies with information about surrounding districts and regions
Parents and Citizens Associations and teaching staff at local schools
local historical, cultural and religious organisations
service networks in adjoining areas
analysis of the likely housing mix, and developers’ target market characteristics
real estate agents (regarding resident and household types moving to the area).
•
•
•
•
•
•
4.2
Local Government Participation
Local governments are leaders and key stakeholders in planning for social
infrastructure. Most local governments in SEQ fulfil a number of roles in planning and
provision, which may include the elements shown below.
Table 2: Local Governments’ Roles in Social Infrastructure
Participation in Planning
Research and data collection
Analysis, management and monitoring of
data and advice on existing provision
Planning strategies
E.g. structure plans, master plans, social/
community plans, youth development plans,
health ageing plans, recreation plans
Integrated planning
Setting or advocating local priorities for
social infrastructure, and participating in
regional agendas
Monitoring
Evaluating and tracking the effectiveness of
local social infrastructure in supporting
community wellbeing
Participation in Provision
Facility provision
Asset management and staffing of local or
district community centres
Resourcing
Supporting community networks through
financial, information, accommodation or
staff resources
Service delivery
Community, cultural, recreational,
information and health services, sometimes
including child care
Partnerships
Collaboration, either project-based or
ongoing, with other local governments and
State agencies to deliver facilities and
services
Most local governments develop and maintain an extensive knowledge of:
•
•
•
•
socio-economic characteristics at the local and district levels
distribution and capacity of social infrastructure
unmet local needs and community issues with the adequacy of infrastructure
effective local responses.
The actions noted in Table 3 (below) will assist in ensuring that local governments
keep their valuable local knowledge current.
Table 3: Keeping Local Governments’ Knowledge Current
Knowledge required
Socio-economic
characteristics
Distribution and capacity of
social infrastructure
Unmet local needs
Regular actions that will assist in keeping
information current
• Analysis of Census data at a local and district level
• Interviews/discussions with households, businesses,
community members
•
•
Regular phone surveys and site visits to community
facilities/services
Discussions with users of facilities and services
•
•
•
Design workshops
Open days
Reference groups
27
Implementation Guideline No. 5—Social Infrastructure Planning
Knowledge required
Effective local responses
Regular actions that will assist in keeping
information current
• Charettes
• Web-based input
• Displays
• Submissions
• Ongoing information exchange
• Workshops
• Phone-in and email comment
• Interagency forums
• Think tanks
• Working groups
• Action research
Local governments (if they are not leading the social infrastructure planning process)
should be invited to participate by means of initial contact with the CEO, the manager
responsible for community and cultural infrastructure, and councillors for the area.
Regular, ongoing inclusion of local governments in regional planning forums for
social infrastructure is also essential.
4.3
State Government Participation
The Queensland Government includes agencies responsible for a wide range of
social infrastructure required in communities, with the exception of Commonwealthprovided services such as income support, some residential care services and
tertiary education. Comprehensive social infrastructure plans will potentially require
the involvement of the following departments, whilst specific plans will require
participation by those with related interests:
•
•
•
•
•
•
•
Department of Child Safety
Department of Communities
Department of Education, Training and
the Arts
Queensland Corrective Services
Department of Emergency Services
Department of Housing
Department of Justice and AttorneyGeneral
•
•
•
•
•
•
Department of Public Works
Disability Services Queensland
Queensland Health
Department of Local Government,
Planning, Sport and Recreation
Department of State Development
Employment and Industrial Relations
Queensland Police Service
An overview of the role of Queensland Government agencies in social infrastructure
planning is provided in Table 4. More detail on agency planning requirements for
different types of facilities is provided in Appendix 1.
Table 4: State Government Agency Roles in Social Infrastructure
Participation in planning
Planning strategies such as departmental
strategic and/or asset management plans
for facility and office space development
Planning and funding frameworks such as
the Department of Communities’ Needs
Based Planning and Resource Allocation
Framework
Collation and communication of regional
and State-wide information
Setting or advocating regional and Statewide priorities for social infrastructure,
and participating in regional agendas (e.g.
SEQ Infrastructure Plan, Regional
Managers’ Co-ordination Network)
28
Participation in provision
Direct delivery of community, cultural, arts,
educational, information, corrections, health
and emergency services
Provision of funding through a range of
programs implemented at State and regional
level
Trialling new models of provision (e.g. health
precincts, multi-tenant service centres and
Private–Public Partnerships)
Partnerships with other State and local
government agencies to deliver facilities and
services
Implementation Guideline No. 5—Social Infrastructure Planning
Participation in planning
Monitoring the effectiveness of regional
and State-wide social infrastructure in
supporting community wellbeing
Participation in provision
Participation in determining infrastructure
needs as part of local government planning
schemes, Local Growth Management
Strategies, and Structure Plans
Early engagement of State Government agencies in planning—from the scoping
stage—is recommended. It is particularly important to understand agencies’ existing
plans for social infrastructure in the area, program priorities and target groups,
forward capital works programs, partnership arrangements, and planning cycles.
State agencies may also have research information from their own planning
processes to assist with wider social infrastructure planning.
The participation of State Government agencies in social infrastructure planning is
usually initiated by invitations to regional managers and area office managers, and to
the Director-General of the relevant State Government department where appropriate
(depending on the scale of the planning exercise and expected outcomes). Interagency participation mechanisms are an essential part of successful social
infrastructure planning and monitoring, and should be developed at a local and
regional level.
4.4
Commonwealth Government Participation
Commonwealth Government agencies also play a role in planning and providing
certain types of social infrastructure. Among the infrastructure facilities and services
supported by these agencies are: Home and Community Care (for aged people and
people with disability, jointly funded by the Queensland Government), aged care
packages, out-of-school-hours care, universities, and contributions to health and
housing services provision. Where appropriate, the participation of these agencies
(generally through regional offices) should be sought, through information exchange
and invitations to join agency planning exercises and planning strategy reviews.
Depending on the focus of the planning, the regional offices of the following
Commonwealth departments may need to be approached: Centrelink; Families,
Community Services and Indigenous Affairs; Education Science and Training; Health
and Ageing; and Veterans Affairs.
The relevant Area Consultative Committee (ACC), acting under the auspices of the
Commonwealth Department of Transport and Regional Services, should also be
consulted. ACCs are not-for-profit, community-based organisations funded by the
Commonwealth Government under the Regional Partnerships program. Their aim is
to build regional networks and partnerships to identify priorities and opportunities for
regional community and economic development, in accordance with a three-year
strategic plan.
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Implementation Guideline No. 5—Social Infrastructure Planning
5
Profiling
5.1
Community Profiling
5.1.1
This section outlines the process of profiling
existing and future communities and facility
provision, and provides guidance on data
management.
Undertaking Demographic
Analysis
This section on profiling aims to
provide useful information about
accessing demographic data,
understanding population
characteristics, conducting regional
analysis, and identifying community
needs. The following agencies
provide expert services in relation to
these data and analysis, and it is
recommended that they be contacted
as a primary point of reference: the
Office of Economic and Statistical
Research (OESR), which is part of
the Queensland Treasury; the
Planning Information and Forecasting
Unit (PIFU), in the Department of
Local Government, Planning, Sport
and Recreation; and the Australian
Bureau of Statistics (ABS).
Profiling
P
•
demographic characteristics
a
r
•
•
c
i
p
a
Assess settlement patterns
and catchment areas
t
i
Identify existing and projected
Describe and quantify existing
social infrastructure
•
Analyse existing information
on community needs
t
i
o
Analysis/Assessment
n
Provision and
Demographic analysis is a key to
Implementation
understanding the community.
Demographic analysis will identify the
number of people currently in the community, their characteristics, and the likely
future population. From this it may also be possible to make assumptions about the
nature of the future population who will live, and in some cases, work in or visit an
area.
The key source of data for all demographic analyses is the Australian Bureau of
Statistics (ABS). The ABS conducts and analyses the five-yearly Censuses of
Population and Housing. A Census was recently undertaken and preliminary results
are expected to be available in July 2007. This will remove the current reliance on
the 2001 Census data, which is problematic in rapidly growing areas such as SEQ.
5.1.2
Analysing the Existing Population
The initial task in a demographic analysis is to determine the existing population of
the area or areas under consideration. Further discussion on how to determine these
‘areas’ can be found in the following section, however the area adopted will depend
on the level of analysis being considered for the provision of community facilities and
services. The smallest level of analysis presently possible on demographic data is
the Census Collector District (CCD)1. If the neighbourhood is larger than one CCD
(which generally average around 220 dwellings in urban areas), then CCDs should
be amalgamated, either using ABS’s electronic software C-Data, or engaging ABS to
amalgamate the data.
1
30
ABS is introducing a new geographical unit, called a meshblock, which will be trialled on some data
from the 2006 Census and fully adopted for the 2011 Census. The meshblock is expected to be
20–25 per cent of the size of a Census Collector District (CCD). From 2011, detailed data will be
available only as meshblocks, rather than CCDs.
Implementation Guideline No. 5—Social Infrastructure Planning
If the analysis relates only to the local level (refer to Section 3.2), then it may be
appropriate to collect data at the Statistical Local Area (SLA) level2. SLAs can also
be amalgamated in the same way. The Local Government Area (LGA) is the next
largest area of published Census data. Beyond this, ABS provides Census
information on Statistical Sub-Divisions and Statistical Divisions across Queensland
(the latter including capital cities), and then at the State level. There is also
information available on Urban Centres/Localities (although these do not equate to
SLAs and only cover portions of Australia) and Statistical Districts (selected urban
areas outside capital cities).
What is important is that the areas used are consistent with those used in other
planning units within an organisation (e.g. a Strategic Planning Branch in a council)
or other important data. Particularly important is that the areas are consistent with:
•
•
•
•
any existing ‘community profile’
strategic planning precincts
existing mapping
precincts used for Local Growth Management Strategy population projections and
Priority Infrastructure Plans.
It should also be considered whether the focus of the analysis should be the resident
population only, or include visitors to the area (such as tourists) and/or workers in the
area3. Determining this might depend on the extent to which these groups could be
expected to use any infrastructure provided, and therefore the extent to which the
capacity of the infrastructure should take into account the needs of these groups.
A data set is available called ‘Estimated Resident Population’, which accounts for the
usual place of residence. This provides up-to-date estimates of the true resident
population on an annual basis but is only available for LGAs and SLAs4. Other
information is also available (e.g. from http://www.btr.gov.au/) on the numbers of
tourists who might visit a locality on an annual basis, and estimates may be made at
peak times by local tourist authorities. Data on the working population is available
from ‘Journey to Work’ data or ‘Working Population Profile’ data prepared from the
Census by the ABS.
Some historical data (relating to one or two previous Censuses) may be useful to the
analysis, especially:
•
•
population by age groups
dwellings by type.
This data can also be obtained from the ABS. When making comparisons, it is
important to ensure that LGA or SLA boundaries have not changed between
Censuses.
It is also important to note that some groups, including Indigenous people, may not
participate in the Census to the same level as other groups, and local enquiries
should be made to supplement Census data.
2
An SLA generally equates to a ‘suburb’ in a predominantly urban area, but in other areas can even
equate to a Local Government Area.
3
Effective from the 2006 Census, all Census data will typically be based on a ‘usual resident’, i.e.
the people who normally live at an address (in contrast to the current Census data, which normally
includes visitors to an area on Census night and excludes usual residents who are absent on
Census night). However, information will still be available on overnight visitors.
4
The Planning Information Forecasting Unit of the Department of Local Government, Planning Sport
and Recreation (PIFU) (www.lgp.qld.gov.au/pifu) makes estimates of the resident population at
Census Collector District (CCD) level.
31
Implementation Guideline No. 5—Social Infrastructure Planning
Tips for demographic analysis
•
•
•
•
•
•
Check whether somebody else has already compiled a ‘community profile’ or
similar product that could meet your needs.
Don’t collect more information than is relevant—specifically, think about those
characteristics (including the key risk indicators) that will influence the type or
number or attributes of community facilities.
Use the most up-to-date information available. Population estimates may be
available to update Census data at the Local Government Area level.
Use the same area boundaries as other relevant planning
agencies/stakeholders, or other important data, particularly population
projections used in the Local Growth Management Strategy.
Use appropriate ‘comparative areas’ (such as a sub-region, region,
metropolitan area or State) to determine whether the demographic profile of
the area is typical or atypical.
Consider both the number and proportion of people with particular
demographic characteristics—while the proportion may be high compared to
another area, it might represent very few people.
5.1.3
Analysing Population Characteristics
Population numbers are important to determine the size of catchment areas and the
facilities that will serve them. Population characteristics are important in determining
the nature and type of these facilities.
The ABS Census provides a wealth of information on demographic characteristics.
Once the area or areas of analysis have been determined, information on
characteristics can be collated. It is often useful to provide several ‘comparatives’ in
terms of the areas of analysis, e.g. as well as Statistical Local Areas, comparative
demographic information might be provided on the Local Government Area (LGA) as
a whole, and possibly the Statistical Subdivision or State. This allows the researcher
to determine whether the demographic profile of the area under consideration is
typical, or whether particular characteristics, for example the proportions of young
children aged 0-4, or people from different cultural backgrounds, are atypical in the
local area. This information will have an impact on the facilities to be planned.
In collating information on demographic characteristics, the rule is to focus on those
characteristics that will influence the type or number or attributes of the community
facilities that are planned. These include:
•
•
number and proportion of people in different age groups
number and proportion of Aboriginal and Torres Strait Islander People and people
from non-English speaking backgrounds
proportion of new residents (not counted at the same address in the previous
Census)
indicators of socio-economic status, such as household income and housing
payments
household type
dwelling type
vehicle ownership.
•
•
•
•
•
32
Implementation Guideline No. 5—Social Infrastructure Planning
Target groups
Demographic analysis should take into account the needs of particular target
groups as well as the needs of the wider community. Demographic data will help
identify potential needs for the following target groups:
•
•
•
•
•
•
•
•
•
•
•
•
children
young people
women, including older women
Aboriginal and Torres Strait Islander people
culturally and linguistically diverse people
people with disabilities
older people
single parents
unemployed people
people living alone
income support recipients
other.
In analysing the demographic data, it is important to have regard to both the number
and proportion of people with particular characteristics. For example, while the
proportion of people 85-years-and-over may be particularly high in a local area
compared to an LGA as a whole, this could only represent 20 or 30 people. The
example below provides an example of the type of information which might be
collected and analysed on key demographic indicators. This information can either
be derived from C-Data or the Australian Bureau of Statistics website.
Key demographic indicators by aggregated CCDs for selected localities
Indicator
Population Summary
Total Persons
Age Summary
0-4 years
0-4 years %
5-14 years
5-14 years %
15-24 years
15-24 years %
65+ years
65+ years%
Ethnicity Summary
Aboriginal and TS Islanders
Aboriginal and TS Islanders (%)
Overseas Born: NESB (a)
NESB (%) (a)
New Residents
Other address 5 years ago (%) (b) (c)
Income Summary
Household income < $500/wk (%) (d)
Household Income > $1000/wk (%) (d)
Household Summary (e)
Couple families with children (%) (f)
Couple families without children (%) (f)
Derby SLA
Greenwald LGA
Qld
3,195
129,429
3,655,139
145
4.5%
251
7.9%
430
13.5%
571
17.9%
7,702
6.0%
18,300
14.1%
14,678
11.3%
20,672
16.0%
242,551
6.6%
519,991
14.2%
495,235
13.6%
443,105
12.1%
16
0.5%
117
3.7%
1,505
1.2%
6,214
4.8%
112,772
3.1%
266,833
7.3%
47.6%
40.8%
10.9%
37.3%
33.2%
40.4%
26.4%
10.9%
35.1%
19.6%
27.1%
29.2%
30.7%
32.8%
27.4%
33
Implementation Guideline No. 5—Social Infrastructure Planning
Indicator
One Parent Families (%) (f)
Lone Person Households (%) (h)
Households Owned (%) (h)
Households Being Purchased (%) (h) (i)
Households Renting (%) (h)
Dwelling Summary
Separate House (%)
Semi-detached Dwelling (%)
Flats, units & apartments
Other Dwellings (%)
Occupancy Ratio
Occ Private Dwelling Occupancy Ratio
Vehicle Availability (j)
No Vehicles (%)
2 or more vehicles
5.1.4
Derby SLA
9.8%
31.4%
28.4%
14.7%
40.6%
Greenwald LGA
12.1%
23.8%
38.5%
23.8%
29.4%
Qld
11.8%
23.2%
36.7%
25.8%
30.1%
25.6%
6.5%
55.3%
8.7%
96.1%
9.1%
16.7%
4.2%
77.1%
6.8%
12.1%
3.1%
1.7
2.2
2.3
8.1%
31.1%
8.0%
42.0%
9.3%
44.5%
Analysing Population Projections
Demographic analysis needs to consider not only the existing population, but the
future communities who will live, visit or work in an area. The most important source
of information on the future community is the population projections which are to be
used within the Local Growth Management Strategy (LGMS). These will relate to the
dwelling targets in the SEQ Regional Plan. These projections are prepared by the
Planning Information and Forecasting Unit (PIFU) at the Local Government Area
(LGA) and Statistical Local Area levels. Estimates of capacity on a within-LGA basis
may be made by the Strategic Planning Branch of councils as an input to projections,
but are then signed off by PIFU. Again, it is important that the areas of analysis used
for planning social infrastructure correlate with the areas of analysis adopted for the
LGMS projections. This will become even more important when a Priority
Infrastructure Plan is developed for infrastructure charges.
It is important in planning future social infrastructure to give consideration to the
staging of provision of facilities. In this regard it is often useful to apply the
population projections at five-year intervals, at least for the foreseeable future,
particularly where these line up with council budgeting processes. An ultimate
population projection can also be useful for the purposes of future planning, although
projections beyond 20 years could be considered ‘crystal ball gazing’. Nevertheless,
it may give some guidance as to where future capacity may be required in facilities
which are planned.
It is also useful to review the likely characteristics of future populations. Although the
characteristics which have been projected forward are limited, there are several
sources of such information. PIFU and the Office of Economic and Statistical
Research (OESR) (www.oesr.qld.gov.au) both provide useful projections on age and
household type, and custom data can be ordered. OESR makes its projections
available at the State and Statistical Division level. PIFU produces projections of
some characteristics at lower levels of geography—LGA, SLA and aggregations of
Census Collector Districts.
5.1.5
Assessing Settlement Patterns and Catchment Areas
Different service and facility providers use different catchment areas for planning in
response to identified needs. Few of these boundaries align (e.g. Queensland
Education catchments do not align with Queensland Health catchments), making it
difficult to apply consistent catchment areas for individual facilities.
At the Local Government Area level, it is desirable for the catchment areas used for
demographic analysis to be consistent with the planning areas used for projecting
34
Implementation Guideline No. 5—Social Infrastructure Planning
population growth or developing planning provisions, and developing Priority
Infrastructure Plans. This may not always be possible (i.e. if planning areas do not
align with Census Collector District boundaries, or do not align with apparent
communities of interest), in which case demographic catchments should attempt to
relate as best they can to a logical functioning of the community (e.g. by combining a
number of planning areas). Council division (electoral) boundaries reflect the
equitable distribution of the population. Before using these as a boundary for a
planning area, care should be taken to ensure they reflect the logical functioning of
the community.
Criteria for determining infrastructure planning areas
• Reflect the logical functioning of the community—the hierarchy of central
places (city centre, district centre, local centre and neighbourhood centre),
and the patterns of movement and association between them (including
how they are supported by movement systems, i.e. road hierarchies, public
transport and pedestrian/bicycle networks)
• Compatibility with the hierarchy of centres established in the SEQ Regional
Plan
• Compatibility with land use planning areas used for strategic, statutory and
infrastructure charges planning
• Topographical and other features, including barriers (such as rivers and
arterial roads) and their influence on movement patterns and the shape of
communities of interest.
5.2
Inventories of Existing Facilities
An inventory of existing facilities is an essential tool that supports social infrastructure
planning. Before the demand for new facilities can be identified, it is important to
establish what facilities already exist, and their capacity to accommodate additional
demand.
The inventory should include council-, State-, private- and community-sector-owned
facilities—to give as complete a picture of available infrastructure as possible. It
should contain only the information needed to meet this purpose. Before designing a
data inventory checklist or survey, it can be helpful to think about how the data will be
used. For example, a social infrastructure planning process will need answers to the
following questions:
•
•
•
•
•
•
•
What type and level (hierarchy) of facilities already exist?
What is the spatial distribution of existing facilities (are they concentrated/evenly
dispersed/poorly distributed)?
How well do existing facilities meet current demand?
Are there any facilities that are under-utilised, in need of major works, or subject
to planned changes in the future?
What is the ownership of facilities, how secure is their tenure, and is access
affordable for all income groups?
Are there any target groups not being catered to by existing facilities?
What opportunities are there for co-location, multiple use or expansion of existing
facilities?
A facilities survey is the most commonly used (and least costly) method of collecting
information for a community facilities inventory. The survey method used will
influence the accuracy of this data—surveys by interview, rather than selfadministered surveys by facilities providers, will provide a more complete and
consistent data set. A number of sources can be used to identify the facilities in an
area, including: community information listings, Yellow Pages, council land use and
rates data bases, and website listings.
35
Implementation Guideline No. 5—Social Infrastructure Planning
Creating community facilities inventories
• Don’t collect too much detail or detail that will become quickly dated.
• Where possible, ground-truth facilities identified in land use and rates data
bases.
• While levels of use are an indicator of demand, don’t get bogged down—it
is enough to estimate that a centre is used at 50 per cent capacity, or a
child care centre is at capacity (i.e. has a waiting list).
• Avoid long questionnaires that impose unnecessarily on facility operators.
• To encourage consistency, provide guidance in the survey form on how to
estimate the catchment area/threshold of the facility (see Section 3.2).
• Design the survey form so that it can be entered into a simple data base.
Without the investment of substantial resources in areas with large populations, it can
be difficult to achieve an accurate inventory. However, every effort should be made to
build a data base that is as complete as possible, especially in relation to information
on the type, location and ownership of existing facilities. An inventory should aim to
report on the following aspects of facilities:
Type of facility
Key descriptor, e.g. community centre, child care centre (see suggested facility
categories below). Description of main facilities, e.g. meeting rooms, office space,
hall.
Target groups served
Main target groups serviced
Location
Street address
Real Property or other geographic locator to enable GIS mapping
Accessibility
Access to public transport services
Proximity to activity centres
Access to pedestrian and cycle networks
Access for people with disability
Catchment area served
Classification of the facility as a local, district, metropolitan/Local
Government Area-wide, or regional level facility (see Section 3.2)
Services offered at the facility
Listing of types of services offered at the facility (e.g. child health services,
information services, other)
Capacity to accommodate additional services/demand, e.g.
Seating capacity of hall facilities/number of child care places
Current level of use (e.g. at or below capacity, existence of waiting lists)
Plans to expand/alter the facility
Short-term planned changes (i.e. in next 2 years)
Longer term planned changes (more than 2 years away)
Ownership and management
Who owns the land and buildings/Who is responsible for managing the
facility?
36
Implementation Guideline No. 5—Social Infrastructure Planning
5.3
Data Access and Management
Data storage and retrieval, integration with the other data management functions of
an organisation, and maintaining the currency of information—these are all important
to the profiling of community facilities. Information can be stored in a range of
database systems. The systems used should match the ongoing capacity of the
organisation to operate them. Unless the organisation has the capacity to operate
more complex systems, it is recommended that it use less complex systems—to
facilitate easy retrieval of information and support research needs analysis.
The information gathered through a facilities inventory process may also be useful for
other needs within the organisation (e.g. compiling community information listings,
linking the data to an asset register, or integrating it with mapping systems that
provide property/locality details to support development assessment activities).
Before deciding on the type of data storage system to use, check first with other
potentially interested people in the organisation or participants in the planning
process to identify potential common interests and uses for the data. Check also
with data management personnel to discuss the best way of meeting user needs.
If the information is intended only for facilities planning, it will need to be updated only
every five to seven years—to coincide with the infrastructure planning review cycles.
However, if the intention is to use the data regularly, then resources should be
allocated and a management system established to enable the data to be updated
regularly.
To help analysis, information collected through an inventory process can be reported
in the form shown in Table 5.
Table 5: Sample Analysis Format for Existing Facilities
Area
name
Community Targeted
Centre
Facility
Facility
Education
and Life
Long
Learning
facility
Merridale 1 Community 2 Child Care 1 Library
Planning Centre
(Central)
Centres
(District)
Area
Proposed: 1 1 Aged
Community
Person’s
Centre (Local) Leisure
Centre
5.3.1
Health
Facility
Emergency Arts and
Service
Cultural
Facility
Facility
Other
Facility
1 Hospital
1 Fire Station Proposed: 1 1 Cemetery
Arts and
Exhibition
Centre
1 Ambulance
Station
Comment
Shortage of
space at
Central
Library
Community
Centre has
capacity to
expand
GIS Mapping
Geographic Information Systems (GIS) are powerful tools for mapping and analysing
data, particularly when spatial analysis is needed. Land use and facility planning rely
on an understanding of the spatial relationship between facility location, user
catchment, and proximity to alternative facilities. GIS systems are capable of holding
a vast amount of information in different ‘layers’, enabling interrogation of data to be
tailored to the needs of a particular project. GIS enable:
•
•
relatively fast and easy cross-referencing across a range of information tailored to
support analysis needs (e.g. facility locations compared to housing types, land
uses and/or public transport routes)
iterative data analysis—so that data queries can be modified and repeated as
new questions arise (e.g. a query to establish accessibility to public transport
might be followed by a query to compare demographic data about car ownership
in relation to a defined facility service catchment)
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Implementation Guideline No. 5—Social Infrastructure Planning
•
ready access to information such as registered plan details, address, ownership,
tenure, land use and other information relating to an individual parcel of land
easy comparison of different planning or administrative boundaries (e.g. the SEQ
Regional Plan’s Urban Footprint, priority infrastructure areas, suburbs, electoral
boundaries, planning scheme boundaries, Statistical Local Areas/Census
Collector Districts, and other planning boundaries).
•
Most local and some State government agencies have a GIS capability. In designing
a social infrastructure planning process, it is advisable to meet with the relevant
personnel to discuss the nature of the research task, the information to be collected
and the opportunity for GIS mapping support.
If an organisation does not have its own GIS mapping capability, the Planning
Information Forecasting Unit and the Office of Economic and Statistical Research
can do customised mapping for a fee.
Tips for GIS mapping
• Don’t collect too much detail or detail that will become quickly dated—avoid
information that is interesting but not necessary.
• Make sure that the information can be maintained.
• Make sure that there is capacity within the organisation to provide ongoing
support for GIS operation and interrogation—the data is not useful if it can’t be
accessed.
• Don’t duplicate—find out first if the data is available from another source.
Mapped layers can be easily imported from elsewhere.
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Implementation Guideline No. 5—Social Infrastructure Planning
6
Analysis and
Assessment
Profiling
P
This section describes the process for analysing
data gathered through participation and profiling
(see Sections 4 and 5) and converting these data
into infrastructure requirements (or desired
standards of service) to meet identified community
needs. It also explains the role of comparative
rates of provision as a tool to assist with needs
analysis, and provides a model of comparative
rates of provision applicable to SEQ. Finally, it
outlines some guiding principles for determining
infrastructure requirements. The section begins
with a brief overview of the different types of needs
that should be assessed.
6.1
a
Analysis/Assessment
r
•
t
Collate and analyse data from
profiling (community profile and
i
facility inventory) and consultation
c
•
i
Spatial analysis of provision,
settlement patterns and catchment
p
areas
a
t
•
Analyse against comparative rates
i
of provision and develop locally
o
applicable desired standards of
n
service
The Nature of Need
•
Identify gaps in existing supply
and assess future needs
Needs are reflected in a number of
different ways, requiring the researcher
•
Validate findings through
to bring together various types of
consultation.
information to generate an accurate
analysis. The needs of specific target
groups (described in Section 5.1.1), as
Provision and Implementation
well as those of the general population,
should be purposefully considered.
Table 6 summarises the different kinds
of need that occur, and the type of information required to help understand them.
Table 6: A Framework for Understanding Need
Types of need
Felt need
Description
What people say they
need
Expressed need
Actual demand
Normative need
Expert analysis of need
Comparative need
Comparable rates of
provision
Latent need
Needs that users are
not yet aware of
Information source
Feedback from consultation with the
community and facility/service providers
(e.g. through meetings, forums,
interviews, other)
Measured through waiting lists, number
of requests for services (e.g. through
facilities inventory survey)
Investigated through demographic and
social trends analysis
Comparative assessment of existing
rates of supply against common rates of
provision in other similar communities
Demographic analysis, particularly of
population change and growth
Analysis of research and public/ social
policy
(Adapted from Local Government Association of Queensland (1996) Social Planning
Guidelines for Queensland Local Government Chapter 9)
6.2
The 5 Steps of Needs Analysis
Analysing and converting community needs into social infrastructure requirements
involves the five steps below. These steps draw on information gathered to identify
the range, number and location of facilities and services required to meet expected
demand for the planning period (see Sections 4 and 5).
Step 1 - Analyse data from profiling and consultation
39
Implementation Guideline No. 5—Social Infrastructure Planning
Step 2 - Spatial analysis of need
Step 3 - Develop locally appropriate standards of service
Step 4 - Identify gaps in supply and assess future needs
Step 5 - Validate findings.
6.2.1
Step 1: Analysing Data from Profiling and Consultation
Information from the community profile, combined with information gathered through
consultation with the community, will provide an understanding of the current
population makeup, social and demographic trends, key target groups and expected
population growth and characteristics. This will enable the definition of market
segments that need to be planned for, as well as ultimate population numbers and
distribution as an indication of demand. The ultimate population can also be broken
down into planning intervals (e.g. five-year intervals) to assist with the staging of
facility provision.
The inventory of facilities should be analysed to reveal the type of facilities that exist,
the rate of supply of facilities per capita, the target groups catered to/not catered to,
the capacity of existing facilities to meet existing demand, and any barriers restricting
the access of particular groups to facilities and services (e.g. cultural or accessibility
barriers).
Consideration should also be given to community capacity—where the operation of
facilities and services is managed by the community sector (e.g. community centres,
aged care service centres, volunteer services). This can be revealed through
consultation, reviewing the extent of community sector involvement in the operation
of existing facilities and services, and through demographic trends (e.g. an
increasingly ageing community might have reduced capacity for self-help).
Community values are also relevant, for example the value of open space,
affordability, self-help, self-containment, or inclusion of people from diverse cultures.
Values can be identified through primary means such as surveys and workshops, or
through secondary means such as analysis of agreed environmental outcomes, and
the results of cultural and community forums.
6.2.2
Step 2: Spatial Analysis of Need
Both the community profile and the inventory of facilities provide data needed to
conduct a spatial analysis of need. This analysis will indicate where populations are
located in relation to facilities and is best done using mapping tools. Mapping should
indicate the following attributes:
•
location of facilities on the inventory (the use of symbols to indicate different
categories can be effective, but make sure there is a cross reference to the
individual facility in the inventory)
population concentrations and distribution (land use maps provide a useful
indicator of the location of activity centres and residential areas, and Census data
can be mapped, bearing in mind that populations can be exaggerated by the
volumetric area of a Census Collector District)
socio-economic data, such as Socio-Economic Indexes for Areas indices of
advantage and disadvantage, or distribution of age groups to indicate particular
needs and areas of vulnerability
activity centre hierarchy (from the relevant planning scheme or SEQ Regional
Plan)
main transport routes (e.g. higher order roads, public transport routes and
pedestrian/cycle networks)
future population growth areas (e.g. new master-planned estates, areas identified
in a Local Growth Management Strategy for infill or future growth or in the
planning scheme as Priority Infrastructure Plan areas).
•
•
•
•
•
40
Implementation Guideline No. 5—Social Infrastructure Planning
Drawing on this information, an analysis of the equity of distribution of facilities can
be conducted, identifying areas and/or target groups experiencing locational
disadvantage, and areas where local demographic trends may impact on demand for
existing local facilities.
Together with data collected from the facilities inventory (regarding the catchment of
facilities and services), the mapped data will enable a broad interpretation of the
catchment of existing facilities. The data should be examined to identify what, if any,
hierarchy currently exists in the provision and distribution of existing facilities, and
how this might be enhanced to serve future needs. Consideration should be given to
establishing a hierarchy of facilities that reflects the hierarchy of activity centres and
major transport routes, especially public transport routes (refer to Section 3.2 for
more information on determining a hierarchy for facilities).
6.2.3
Step 3: Developing Locally Appropriate Standards of Service
As indicated in Section 2.3, to enable charges to be applied to development so that
the cost of supporting infrastructure can be shared, infrastructure requirements need
to be converted into desired standards of service (DSS). DSS set out the
expectations for social infrastructure and are specified as a single facility per 1000
people. A first step in generating a DSS is to evaluate the adequacy of the existing
supply of social infrastructure. This is done by:
•
•
reviewing the data analysed in Steps 1 and 2 above in relation to capacity and
adequacy of existing supply, and
comparing the existing rates of provision against comparative rates of provision in
similar urban contexts.
Comparative rates of provision are an important planning tool, and are described in
more detail below.
The role of comparative rates of provision
The concept of comparing rates of facility provision has been used for many years as
a planning tool to help indicate the number of people a facility can serve and the
number of facilities which may be required in an area. It can take many forms,
ranging from:
•
•
•
standards, which generally imply a ‘norm’; or
benchmarks, which often imply ‘adequacy’; to
targets, which can indicate a goal to be achieved.
These Guidelines have adopted the term ‘comparative rates of provision’ to indicate
that the ratios provided are based on common experience and bear no relationship to
government policy or concepts of adequacy or requirements. Comparative rates of
provision should not be considered a minimum standard of provision to be met by
any agency, nor should they be considered binding or lead to the expectation that a
certain level of facility provision will be attained. They are simply used as a starting
point for determining what need might be present in a community.
As such, comparative rates of provision are only one factor in determining the need
for new facilities. Other factors that need to be considered include demography,
capacity of existing facilities, social and economic disadvantage, and other local
issues. In some cases, agencies may use them as an early indicator to determine
whether a needs assessment may be required to be undertaken for a particular
facility or service. This assessment may result in the upgrading or expansion of an
existing facility rather than the provision of a new facility. When it comes to major
State infrastructure, it is recommended that users consult relevant agencies in regard
to their planning intentions, rather than basing planning assumptions on comparative
rates of provision alone.
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Implementation Guideline No. 5—Social Infrastructure Planning
There is no universally agreed set of comparative rates of provision for community
facilities and services. Rates cited in the literature are often dated and are not
responsive to different urban settings or lifestyle situations. The application of
comparative rates of provision to services is less developed than for facilities. Few
service providers use published standards in relation to the planning of services and,
in many circumstances, the process of developing comparative rates of provision for
services is itself not appropriate.
Nonetheless, appropriately considered comparative rates of provision are often the
best indicator for assessing comparative needs, particularly across a Local
Government Area, and especially in relation to facility provision (as opposed to
services). Comparative rates of provision are even more effective when adapted to
local circumstances, or where consultation is undertaken with a range of agencies to
determine the desireable level at which facilities are provided in an area. This is the
approach undertaken in these Guidelines.
Hierarchical model of provision
A hierarchical model of infrastructure provision appropriate to the SEQ context has
been developed for comparative purposes, to assist with determining desired
standards of service in the region (see Table 7). The comparative rates of provision
contained therein are considered to be the best and most recent guide to social
infrastructure provision at the local, district and Local Government Area (LGA)-wide
(or wider) levels in Queensland. The model is based on a series of investigations
that reviewed commonly used rates of provision; demographic and housing formation
trends; and models of community facility provision currently applied in Queensland.
They draw on a combination of research, consultation and practice undertaken by the
authors in conducting social infrastructure planning in a number of LGAs, including
Beaudesert, Maroochy, Caloundra and Brisbane City and others5.
The model proposes a hierarchy with the following three levels:
•
Local area level—as a guide usually between 5,000 and 10,000 people,
although, as noted, this can be up to 20,000 people in some circumstances.
District level—generally between 20,000 and 30,000 people, although in some
cases districts of up to 50,000 people can be identified.
LGA-wide level, or in some cases a sub-regional or regional level.
•
•
There may be several neighbourhoods making up a local area. However, unless
isolated, neighbourhoods of themselves are unlikely to warrant social infrastructure
other than basic items essential to all communities, such as a park with children’s
playground, post box, public telephone, walking and/or pedestrian/cycle paths, public
transport service and corner shop(s), and possibly a neighbourhood house (1:2,500–
3,000). At the other end of the hierarchy, there is also the city or metropolitan scale,
which in itself contains a myriad of the other catchments.
5
42
These comparative rates of provision are largely derived from original work undertaken by
consultants and published in a special December 2005 edition of the journal Urbecon. They have
been broadened in the Guidelines to take into account the possible variations which may occur in
different typologies (see Section 7.1.1) and the ranges which may occur in different situations.
Implementation Guideline No. 5—Social Infrastructure Planning
Basic social infrastructure for new neighbourhoods
• Post box
• Public telephone
• Park with children’s playground
• Public transport service
• Corner shop
• Somewhere for the community to meet (e.g. a neighbourhood house or shop).
The model below outlines the hierarchy of local, district and Local Government Areawide social infrastructure. It is provided for comparative purposes only, as part of a
broader assessment of needs (as described earlier in this section). Before
concluding that a new facility is required, consideration should also be given to the
potential to upgrade, expand or better utilise an existing facility, or meet the need
through outreach services.
Table 7 lists the types of social infrastructure relevant to a given area (‘Facility’), the
comparative rate of provision (per number of population), and the authority
responsible for providing the facility. The last column indicates those facilities often
provided by councils (e.g. under an Infrastructure Charges Schedule). It should be
noted, however, that authorities may wish to bring forward the provision of some
items of infrastructure, before population thresholds are reached—particularly in
isolated areas or where there is no capacity in surrounding areas. Ideally, basic
(neighbourhood-level) social infrastructure should be available to the first residents in
a community.
Table 7: Comparative Rates of Provision—Hierarchical Model
These comparative rates of provision (and calculated desired standards of service
(DSS)) should be considered as part of a wider assessment of local need and should
not lead to the expectation that the comparative rates of provision (or DSS) are
required or will be attained.
Comparative rates of provision should be converted to DSS through the process
described below, and considered in relation to urban and rural settlement typologies.
Level
Facility
Comparative rate of
provision
Responsibility
Local
(Usually
5,000–
10,000
people,
but up to
20,000)
Community meeting
room/
Neighbourhood house
Multi-purpose hall/local
community centre
Child care centre (long
day care)
1:2,500–3,000
Council/private/
community
1:6,000–10,000
Council/community
1:500–700 children
(0-4 years old), or
1:9,500 people
1:16,000
1:7,5006
Council/private/
community
Kindergarten
Primary school
District
(Usually
Multi-purpose
community centre
1:20,000–50,000
Private/community
State7
Council/state/
community
6
The rate quoted is for a greenfield setting; it may be higher in other typologies.
7
Private schools have not been included as comparative rates of provision vary significantly
between providers.
43
Implementation Guideline No. 5—Social Infrastructure Planning
Level
20,000–
30,000
people,
but up to
50,000)
Shire-wide
or Regional
Facility
Comparative rate of
provision
Responsibility
High school
Youth centre/service
Performing arts space
1:20,0008
1:20,000–50,000
1:30,000–50,000
Community health
centre
Branch library
Neighbourhood centre
(may act as community
centre)
Aged care
service/respite centre
1:20,000–30,000
State9
Council/State/others
Council/State/
C’wealth/
others
State
1:15,000–30,000
1:20,000–30,000
Council
State/community
1:20,000–100,000
Police and emergency
services
TAFE campus (district)
Art gallery
1:25,000–30,00010
Council/State/
C’wealth/
Community/others
State
1:over 50,000
1:30,000–150,000
Museum
1:30,000–120,000
Central library
Civic centre
Performing
arts/exhibition/
convention centre
Regional community
care hub
Community health
precinct
Hospital
1:30,000–150,000
1:30,000–120,000
1:50,000–200,000
Not specified11
Council/State/
C’wealth
Council/State/
C’wealth
State
TAFE facility (regional)
1:over 150,000
State
University
1:150,000–200,000
State/C’wealth/private
1:30,000–100,000
1:100,000–300,000
State
Council/State/
C’wealth
Council/State/
C’wealth
Council
Council
Council/State/
C’wealth
Converting the comparative analysis to desired standards of service
The analysis of the data (from the profiling and participation phases) and the
assessment of existing rates of supply against comparative rates of provision, are
now brought together to inform the development of locally appropriate desired
standards of service (DSS).
8
The rate quoted is for a greenfield setting; it may be higher in other typologies.
9
Private schools have not been included as comparative rates of provision vary significantly
between providers.
10
While emergency services are typically accessible at this level, strength of presence depends on
response time profiles, proximity to existing facilities and other service delivery considerations.
11
Dependent on the size of the catchment population and the service capability level of the facility—
in accordance with the Clinical Service Capability Framework—and commitments made in the SEQ
Infrastructure Plan.
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Implementation Guideline No. 5—Social Infrastructure Planning
Table 8 provides an example of how to integrate these investigations. Adopting the
three-tiered hierarchy from the model above, the table summarises key research
findings against each type of facility, including: the existing rate of provision (number
per 1000 head of population); comparative rates of provision; and findings about the
needs and opportunities relating to the particular facility. It concludes with a
suggested, locally appropriate rate of provision (or DSS) that reflects these key
research findings. In addition to facilities, the table is also capable of reporting
service needs, or opportunities to meet additional needs through the upgrading or
extension of existing facilities.
For a list of facilities against which to report, see Appendix 1.
Table 8: Integration to Develop Desired Standards of Service
Planning
area
Type of
facility
Local facilities
Precinct
Multi1
purpose
hall
Existing rate
of provision
Comparative
rate of
provision
Analysis
Desired
standard of
service
Nil
1:6,000–
10,000
No existing
facility and
poor access to
district-level
facilities
Emerging
community with
limited
opportunity for
social
networking
Community
feedback on
need for
playgroup
meeting
spaces
Support
needed to
facilitate local
group
1:6,000
Other:
Community
development
support in
new
community
District Facilities
North
Community
District
centre
1:50,000
1:20,000–
50,000
Current
undersupply
indicated:
existing centre
fully used;
shortage of
meeting
spaces
Some
additional
capacity at high
school
1:35,000
LGA-wide facilities
Performing
arts centre
1:250,000
1:50,000–
200,000
Used at 90 per
cent capacity
Civic centre
can be adapted
to support
additional arts
performance
1:250,000
Other:
Upgrade civic
centre
45
Implementation Guideline No. 5—Social Infrastructure Planning
6.2.4
Step 4: Identifying Existing and Future Needs
Applying the desired standards of service (DSS) developed in Step 3 to the existing
and expected future populations enables the identification of both existing gaps in
supply, and likely future infrastructure requirements.
Table 9 provides a template for reporting existing and future needs, applying locally
appropriate DSS to:
•
•
existing populations (using Census data)—to identify gaps
expected change in population, taking into account existing infrastructure—to
determine the likely demand for new infrastructure.
The demand for new infrastructure can then be reported for both existing and future
populations, bearing in mind that infrastructure charges applied through the planning
system can only apply to demand generated by future populations.
Table 9: Template for Reporting Existing and Future Needs
Planning
area/Type
of facility
Precinct 1
Multipurpose
hall
6.2.5
Desired
standards
of service
Existing
population
Surplus/
shortfall
Population
2021
Requirements
by 2021
Existing Future
need
need
1:6,000
8,000
-1
25,000
1
3
Step 5: Validating and Reporting Findings
The numbers derived from applying the desired standards of service (DSS) are only
one input into determining ultimate need. The results of this analysis should now be
validated against other information, as they are not an indication of need in
themselves. The findings should be tested against profiling data and local knowledge
of demographic trends, target groups and general population needs generated in the
preceding steps. Consideration should also be given to established knowledge about
the capacity of existing facilities to absorb greater demand (e.g. through expansion,
upgrading, shared use or improved management).
Trends in service provision should also be considered at this stage, to establish how
new models of delivery might influence the need for facilities (e.g. the delivery of
outreach health services might reduce the need for a community health centre, or
increase the demand for an additional community centre).
This is also an appropriate point at which to consult with other facility and service
providers and the general community to test the findings to date, including the
proposed DSS and the resultant infrastructure gaps and needs identified.
Consultation at this point will also enable opportunities for potential co-location, joint
use or integration of services and/or facilities to be identified.
To maximise resource use and efficiencies in delivering the best range of facilities
and services possible for the community, the needs analysis process should identify
and report on opportunities for:
• increasing utilisation of existing facilities with spare capacity
• modifying existing facilities to meet need
• partnership or co-location arrangements
• integrated service delivery
• potential to meet identified needs through outreach services.
This information might alter the actual number of facilities required, and will
provide critical information in determining implementation mechanisms and
strategies for the ultimate social infrastructure plan.
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Implementation Guideline No. 5—Social Infrastructure Planning
Examples of opportunities for integration
•
•
•
•
•
•
expansion of a library to provide meeting rooms, education spaces and
facilities, craft and/or exercise workshop spaces
negotiated shared use of school facilities for meeting spaces, recreation
and sport
provision of health services through schools
arts and cultural facilities within a TAFE or on a university college campus
design of facilities to accommodate interim uses (e.g. planning for
playgroup equipment and facilities in a space earmarked for ultimate
development as a branch library)
integrating library and community centre facilities in a single, multiple use
facility that serves as a community hub.
Once needs have been further analysed and validated, it is necessary to report these
in the form of required infrastructure. In completing this analysis, reference should
be made to the specific considerations for individual facilities in Appendix 1.
The following template is offered as one of a number of ways in which the reporting
of infrastructure requirements can be done.
Table 10: Template for Reporting Required Infrastructure
Planning
area/Type
of facility
Precinct 1
Multipurpose
hall
Facility recommended
2010
Upgrade
existing
2016
2
2021
1
Location
preference
in/near
activity centre
Site
area
(m2)
700m2
(min.)
Comments
2010 facility: upgrade
existing buildings at
Station Road site
2016 facility 1:
secure land but rent
commercial space in
Blue Bay activity
centre initially, until
population threshold
justifies capital
works.
A social infrastructure plan may also identify responsibilities for delivery, sources of
funding, priorities and timing for the development of infrastructure, and a program for
monitoring progress against the plan. Since the needs and circumstances of a
community change over time, the social infrastructure plan needs to be monitored
and reviewed at regular intervals (for further information on monitoring, refer to
Section 8.5).
6.3
Guiding Principles for Determining Infrastructure Requirements
Converting needs into infrastructure provision can be complicated by inadequate
knowledge of facility co-location and/or the appropriateness of doing so; shortages of
funds to provide facilities; inadequate knowledge of grants and financing tools;
inability to obtain appropriate tracts of land; changing service delivery models; and
the inability to coordinate with other agencies to consolidate existing community
nodes.
The following set of guiding principles can help planning agencies when converting
‘need’ into defined infrastructure requirements:
•
Testing and monitoring desired standards of service
The infrastructure requirements identified by applying locally appropriate desired
standards of service should be tested through community consultation to validate
the needs assessment. Similarly, future forecast needs may shift with time as the
result of changing demographics, community expectations or societal standards.
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Implementation Guideline No. 5—Social Infrastructure Planning
The determination of effective community infrastructure provision is an iterative
process and community needs should be monitored for changes in the level or
type of demand over time.
•
Maximising usage of existing facilities
In providing new community infrastructure it is important to understand the
capacities and performance of existing community facilities. Some facilities may
be underutilised for a range of reasons that include poor awareness (promotion),
restricted access by a controlling organisation, or poor facilities management.
However, the best facility management practices are no substitute for optimum
facility location and access. A well-promoted facility is unlikely to attain maximum
usage if it is poorly located in the first instance.
•
Developing flexible, multi-purpose facilities
In many cases, it is not feasible or appropriate to provide stand-alone facilities for
the exclusive use of specific community or socio-demographic groups. In
addition to being costly and limiting the ‘life’ of a facility, it can exclude access to
certain funding mechanisms (such as infrastructure charges—see Section 8).
Exceptions may apply to facilities provided specifically for young people, where
separate or stand-alone facilities may be required to cater explicitly for their
activities. Consideration should also be given to the ability and appropriateness
of incorporating commercial functions—such as office space which can be leased
to community organisations, government agencies or the private sector—to help
offset the capital and operating costs of a facility.
Four models of service delivery are discussed in these Guidelines. While they
overlap in practice, they may be defined as follows:
Stand-alone facilities—the establishment of dedicated facilities serving a single
or multiple community purpose.
Co-located facilities—the joint location of service providers within a facility,
usually without integration of services, but involving shared premises and
possibly some administrative or other services.
Integrated service centres or nodes—the joint location of service providers
within a facility (as per co-location) but with integration of services to provide a
co-ordinated, one-stop-shop approach to case management and service
delivery.
Hub—a collection of facilities clustered together on the same or adjoining sites.
There may or may not be interaction between these facilities. Together, they
create a focal point for community activity. A hub is often also a base for
outreach services to other smaller facilities or surrounding communities.
•
•
•
•
•
Co-locating compatible uses and creating community hubs
Where it is in the community’s best interest, community facilities should be colocated to strengthen the development of community focal points, or hubs.
However, there will be some uses that are not compatible with this concept. The
following issues should be considered prior to embarking on co-location:
− What are the potential mutual benefits of co-location?
− Are there similarities in purpose and shared values with the potential facilities
that are considering co-locating?
− Are the facilities of a similar or complementary scale?
− Is the land available for the range of uses?
− What needs to occur to ensure that agencies cooperate? For example, is
there a ‘broker’ to facilitate co-location? Are the parties willing to co-locate?
− What are the legal and insurance implications of co-location?
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Implementation Guideline No. 5—Social Infrastructure Planning
Community hubs can also be created by locating a number of facilities in a
common locality. This arrangement would be appropriate in transit-oriented and
inner-city communities, where social spaces in the public domain are limited.
These hubs play an important role in helping to bring people together and creating
a sense of local community identity.
•
Create facilities appropriate to the level of service demanded
Generally, local facilities should have a ‘neighbourhood’ feel, provide relatively
informal spaces, have safe and convenient cycle and pedestrian access, and,
ideally, be managed by the local community, with local government support or
involvement as appropriate. District-level facilities should be located in higher
level activity centres, be accessible by public transport and provide a broader
range of structured and semi-structured spaces for community use. District
facilities may require more formal management and tenancy arrangements.
•
Optimising location of facilities
Facility location is one of the primary determinants of function and usage.
Maximum patronage will often be promoted by integrating facilities within broader
activity centres with compatible uses. An active, high-profile location may
increase real and perceived safety for potential facility users. The location should
also maximise accessibility to the facility’s target market through good access to
public transport (multi-nodal where possible), foot and cycle paths. For some
facilities, locational criteria are paramount (e.g. response time from a fire station
or pedestrian access to a community centre for users who do not drive).
Facilities should be located where people can access them conveniently,
including access by public transport, and ideally as part of their daily travel
routine (i.e. near activity centres).
•
Engaging in partnerships with the private and public sector to deliver
affordable and accessible facilities and services
Innovation in the delivery of community facilities is needed to deliver affordable
and accessible facilities. Opportunities for a range of public, and public/ private
partnership should be considered. For example, development incentives and/or
agreements should be considered to encourage private sector investment in
community facilities on government-owned land; and relationships should be
developed with the owners of significant facilities (such as tertiary education
institutions) to allow general public access to underutilised facilities at certain
times of the day/week. Wherever possible, the development application process
should be utilised to realise community infrastructure requirements (e.g. setbacks
to buildings to ensure a public realm is provided/ protected, requirements for
community facilities and/or space to host community facilities in high-density
developments, etc).
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Implementation Guideline No. 5—Social Infrastructure Planning
7
Planning Considerations
7.1
Considerations for Different
Typologies
This section discusses the considerations which
should accompany analysis of social
infrastructure needs and responses. These
considerations include different needs for urban
settlement typologies (with hypothetical
provision models for typologies, design and
locational criteria applicable to social
infrastructure, and considerations for services
and specific user groups).
Section 3.2 identified typologies of urban
and rural settlement within which varied
models of social infrastructure provision
may be appropriate. In each typology,
however, the basic ‘rules’ relating to the
hierarchy of provision should be applied
(i.e. infrastructure should be planned in a
‘nested hierarchy’ of levels—
neighbourhood (if applicable), local,
district, Local Government Area-wide and, possibly, sub-regional/regional or even
metropolitan level).
Some levels of this nested hierarchy may be outside the area being planned. Hence
in many (if not most) cases, there will be an existing level of provision of social
infrastructure which should be taken into account in determining the need for new
facilities. Some of this infrastructure may be at capacity and may require expansion,
upgrading and/or relocation to accommodate the new population. This may create
opportunities for co-location in line with new models of service delivery.
There may also be overlapping hierarchies, with catchment areas not always clearly
distinguishable. Hierarchies are provided as a guide—accessibility should be the key
determinant to define the appropriate catchment area of a proposed or existing
facility.
There is likely to be some variation of appropriate comparative rates of provision
across typologies, depending on the local circumstances. Again, these typologies
should be subject to the development of ‘locally applicable’ comparative rates of
provision or desired standards of service (see Section 6.2.3). Locally applicable
comparative rates of provision in a greenfield situation will generally be derived from
a structure plan for an area, or a master plan (where the area is under 100 ha).
These plans will dictate the number of neighbourhoods, local areas and districts in an
area under consideration. In existing or infill areas, it will be important to consider
existing community boundaries, suburban catchments and townships which currently
act as service centres, and local residents’ perception of these.
Likewise, in rural areas there will be well-established travel patterns and hierarchies
of service centres which will affect the provision of facilities. Rural-residential areas
are included as they frequently present a challenge to councils in terms of servicing.
These areas are often superimposed on an existing hierarchy without consideration
of social needs. As such communities grow, they can often become vocal in terms of
demanding ‘peri-urban’ services which otherwise would not be provided in a rural
area. Some guidance is therefore provided on the level of social infrastructure
servicing that is considered appropriate for these types of areas.
7.1.1
Social Infrastructure in City Centres/Activity Centres/TOCs
City centres, activity centres and transit oriented communities (TOCs) will have
particular social infrastructure requirements related to their high densities and the
nature of their populations (as outlined in Section 3.2). Social infrastructure will need
to be provided for people of all ages in the city centre, activity centre or TOC,
including residents, workers and visitors, commensurate with their needs.
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Implementation Guideline No. 5—Social Infrastructure Planning
The implications for social infrastructure may include the following:
Maximising land availability
•
•
•
Higher density living will create a need for more public spaces for social and
recreational activities.
Land prices will be high, so maximising the efficient use of existing infrastructure,
co-location and creative use of public space will be important, e.g. the use of
rooftops, road closures, building plazas, etc.
There may be a need to consider the purchase or rental of floor space (vertically)
rather than land (horizontally) for community facilities.
Tailoring comparative rates of provision
•
•
•
•
•
There may be a reduced need for facilities at the ‘local’ level and an increased
concentration of facilities at either the neighbourhood or district levels, due to
improved walkability and high accessibility to public transport. In addition,
regional-scale facilities may double as local-level facilities (e.g. major sporting
centres).
Comparative rates of provision for community centres may be increased to the
district level (i.e. there will be less need for dispersed local centres because of
high accessibility to a central point).
An increased provision of local level meeting rooms may be appropriate in
opportunistic, dispersed locations. Some of these rooms would be available in
the private sector (e.g. hotels and residential buildings).
Fewer services (i.e. lower comparative rates of provision) may be required for
children and young people. However, open spaces for their formal and informal
sporting needs (e.g. skating, soccer, rollerblading), children’s play opportunities
and interactive public art will continue to be important.
The child care demands of the residential population are likely to be relatively
low, although there will be a need for work-related child care in the area. Child
care requirements may need to be established by estimating the combined need
of the area’s workforce and residents.
Fully utilising the public domain
•
•
•
The role of the public domain will change—it will become more important as a
social space and there will be increased pressures on it and competing uses by a
diversity of groups. There will be an increased importance on ‘places’ such as
streets, plazas and sidewalks as informal community facilities.
There will be a need for social inclusion in the use and design of space, including
the resolution of issues relating to the potential alienation of the public domain
through privatisation (e.g. shopping malls, outdoor dining). Informal open spaces
will be needed where people can sit for free and observe city life.
It will be important to provide spaces which encourage casual interaction between
neighbours and other community members—to overcome social isolation.
Similarly, leisure opportunities and opportunities for social interaction for sole
people and couples will be required.
Employing different service models
•
•
•
•
Community and employment uses may be 24-hour operations, requiring different
service models.
Facilities for young people may take a different form to those in suburban areas
(e.g. shopfronts, cultural spaces, and informal learning, training and development
spaces).
A wider range of educational facilities may be provided, unrelated to comparative
rates of provision, e.g. a large number of private schools.
Facilities and services for the aged may be important (especially in existing
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Implementation Guideline No. 5—Social Infrastructure Planning
inner-city areas) and appropriate comparative rates of provision may be higher
than usual. The accessibility of the public domain for people with disability will
become increasingly important as neighbourhoods age.
Multi-purpose facilities with strong neighbourhood support functions will be
required, especially in older inner-city areas.
Facilities will need to be very flexible to cater for future population change.
Fewer facilities catering for higher population thresholds may be sufficient due to
increased accessibility.
The provision of several centralised facilities or services and opportunities for the
co-location of service providers will be important in supporting community
development and helping to reinforce the identity of community foci or
neighbourhoods.
•
•
•
•
Emphasising cultural facilities
• Library facilities could be expected to form a focal point in the community and
may include meeting rooms, informal meeting and reading areas, and a council
customer service centre, with an emphasis on accessibility to technology and
increased opening hours.
• Increased cultural opportunities will be important to the population, including
galleries, performing arts centres and museums. Comparative rates of provision
for these facilities may be higher than in suburban areas. Street performances
and festivals will enrich the cultural life of the community.
• Public art space and interactive public art, particularly for children, will be
important, as well as affordable art and performance spaces for young people
and improved arts and cultural opportunities for Indigenous people and people
from culturally diverse backgrounds.
7.1.2
Social Infrastructure in Greenfield Areas
Social infrastructure planning in greenfield areas is more likely to be able to be
undertaken in accordance with comparative rates of provision than any other
typology, because of the ‘clean slate’ nature of the planning exercise. Even so, no
centre or area is planned in a vacuum and at some level of the hierarchy there will be
other centres and areas which will provide higher-order services for the greenfield
areas. These will influence the facilities to be provided in the new area itself.
The structure plan or master plan for the greenfield area will also shape the provision
of social infrastructure. This is the starting point for determining the hierarchy of
infrastructure which will be needed. How many districts and local level catchments
will there be? How many neighbourhoods will be created? Close scrutiny of
geographic and physical constraints, the proposed hierarchy of activity centres and
the subdivision and road pattern will help to answer these questions.
Developer contributions of land for community facilities will be most effective in
greenfield areas. Co-ordination between State and local government agencies will
be necessary to ensure capital and recurrent funding for facilities. Developer
agreements may assist in providing well-serviced communities, which can become a
marketing asset.
Factors which may influence the provision of social infrastructure in a greenfield area
include:
Importance of early provision
•
A greenfield area may be isolated from community facilities and services in other
centres and is more likely to need to be self-contained at the lower levels of the
hierarchy.
Public transport may be poor or non-existent, especially in the early stages of
development. Walkable access to local facilities will therefore be important.
•
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Implementation Guideline No. 5—Social Infrastructure Planning
•
•
•
•
•
Services will need to be able to expand over time in line with the progressive
increase in population. Initially, some services, for example health, may be
provided to these communities on an outreach basis and require only periodic
use of on-site facilities. As the population grows, services will increasingly
require a full-time, on-site presence.
Neighbourhood-level facilities will form the basic building blocks of community
development and need to be established early in the development of an area.
Neighbourhood houses may be established in new areas by developers (e.g.
conversion of sales offices or display homes) as a marketing tool. Churches and
schools will often include potential meeting spaces.
A place for the community to meet is a basic prerequisite for community
development. These places help to create a sense of belonging and responsibility
for an area that supports community wellbeing and safety. Local facilities will
encourage the formation of new groups, build community cohesion and
relationships, and link the community to wider networks.
Early planning for a facility will contribute to affordable outcomes as setting aside
land at the outset of development is more cost-effective than trying to purchase
land once a catchment is full.
The availability and adequacy of existing social infrastructure needs to be
determined in developing new facilities as part of the district/ Local Government
Area/sub-regional hierarchy.
Flexible and multi-purpose
•
•
•
•
Multi-purpose facilities will provide the best use of scarce resources and allow the
needs of the whole community to be accommodated, especially in the early
stages of development.
As the community grows, facilities will need to become more specialised to cater
to the needs of different target groups, including young people, older people and
people from different cultural backgrounds.
Flexibility in the design of community facilities will be important to permit them to
change with the changing needs of a growing and maturing community.
All new community facilities should comply with the requirements of the Disability
Discrimination Act 1992, including external access (e.g. ramps), toilets, parking
and access to all parts of the building (e.g. kitchen and stage).
Integration
•
•
•
•
•
Facilities can be grouped into integrated service nodes to reinforce community
foci. Clustered facilities are more likely to be accessed by public transport,
especially if located near shopping and other facilities, and may provide
convenient locations from which to provide services.
Walkability to community facilities should be encouraged by subdivision and
urban design initiatives to ensure people who do not drive, people with disabilities
and single-car households have good access to local services.
Spaces need to be provided which will encourage community members in a new
area to connect and interact, including low/no cost options where residents can
meet.
Where possible, integration with existing neighbourhoods and community
facilities should be facilitated.
One of the benefits will be strong networks forged between local and district
social infrastructure providers.
7.1.3
Social Infrastructure in Infill Areas
In contrast to greenfield areas, the provision of social infrastructure in infill areas will
be heavily influenced by the infrastructure that already exists around them at all
levels of the hierarchy. Indeed—in line with the principles of the SEQ Regional
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Implementation Guideline No. 5—Social Infrastructure Planning
Plan—a key factor in selecting infill areas should be the availability of spare capacity
in community facilities and services.
Developer agreements may be a useful tool in ensuring funding for upgrading or
expanding existing facilities and promoting a high level of local amenity in new
developments. Developer contributions may be less effective in infill areas where
there are backlogs of facilities needed by the existing community. Factors influencing
the provision of social infrastructure in infill areas include:
Utilising existing infrastructure
•
The comparative rates of provision applied to the new community should take into
account the availability of any spare capacity in existing social infrastructure.
Sharing existing community facilities will help to integrate new and existing
residents, and can enliven a declining or ageing community.
There may be a need to upgrade or modify existing social infrastructure to
accommodate the particular needs of the new community, which may differ from
existing residents.
It will be important to involve both existing and new users of facilities in their
planning and design. This will also assist community development and
integration of new residents into an existing community.
Good access to higher-level facilities, particularly libraries and cultural facilities,
will be important in meeting the needs of the incoming population.
Generally, infill areas should be able to make use of existing school
infrastructure, especially as relatively low proportions of young people are
expected to be generated by this form of development.
•
•
•
•
Creating new facilities
•
Where infill populations are high enough or large brownfield sites are developed,
it may be appropriate to provide some items of social infrastructure to specifically
serve the new population. This provision will tend to be at the neighbourhood
level, and will promote a sense of community among new residents.
Where possible, new social infrastructure should be connected and integrated
with the surrounding area.
As for an activity centre or transit oriented community (TOC), medium- to highdensity living will create a need for more public spaces for social and recreational
activities. This will be important in encouraging casual interaction between
neighbours and other community members.
Facilities for young people may still be important in infill areas, although these
may take the form of cultural or leisure-based centres, and could be expected to
cater for existing residents as well as new residents.
Local-level meeting rooms may be appropriate in opportunistic, dispersed
locations, some in the private sector. These will need to be available after hours.
As with a TOC, fewer services will be required for children, however open spaces
will need to be provided for children and young people.
Facilities and services for the aged may be important for existing and some new
residents. Empty nesters may look more to recreational and learning
opportunities in the private sector.
•
•
•
•
•
•
Using the public domain
•
Walking/cycling to facilities will be important in enlivening the urban domain and
increasing the feeling of public safety and wellbeing.
Crime Prevention Through Environmental Design principles should be used to
ensure the development of the urban domain and community facilities is safe and
to encourage the use of outdoor space for social interaction.
Public art, including interactive public art for children, will be important in
•
•
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Implementation Guideline No. 5—Social Infrastructure Planning
improving the quality of the urban domain, as will affordable art and performance
opportunities for young people.
Integration
•
•
•
Where new facilities are required, they should be grouped together in a central
location to reinforce the identity of community foci or neighbourhoods and
increase the opportunity for access by public transport.
Land prices will be moderately high, so co-location and creative use of public
space will also be important. Some facilities, such as meeting rooms, could be
expected to be located in multi-storey buildings.
Opportunities will need to be taken for developing social infrastructure in private
developments and commercial locations.
7.1.4
Social Infrastructure in Rural Centres
Rural centres are often built on a traditional network of social infrastructure. This is
often suited to an older population and there are sometimes issues relating to the
age and condition of facilities. The level of facilities provided is often dependent on
whether a township is the primary centre in a Local Government Area, the size of the
surrounding rural catchment area, and the township’s isolation from other centres. In
these cases, the rural centre may have been provided with infrastructure at a
significantly higher rate of provision than an urban centre with a similar sized
population. Rural centres in SEQ are generally quite small (mostly under 5,000
people) and consequently will require limited infrastructure.
Slow growth in most rural centres will limit the potential for developer contributions to
social infrastructure funding, leading to a higher dependence on funding from local
and State government agencies
Factors which may influence the provision of social infrastructure in rural centres
include:
Consideration of the wider hierarchy
•
•
•
•
•
•
•
There may be a need for facilities beyond their population threshold due to
distances to other centres and the size of rural catchments.
Such facilities may be co-located and are often provided through innovative
solutions (e.g. a number of service providers operating out of one building,
community- and volunteer-initiated facilities and services, partnerships with
colleges and universities).
A plethora of existing halls may reduce the need for community centres.
Local Government Area-wide level facilities are commonly located in rural centres
of lesser size than the comparative rates of provision would prescribe, e.g. civic
centres and libraries.
There will be a need for delivery mechanisms which efficiently service wide
geographic areas.
Provision for a wide range of community needs under one roof in a rural
community, such as access to technology, a training and meeting
venue, government service providers, literacy and youth development programs,
accredited TAFE programs, and business services and equipment for the general
community.
In smaller rural villages, a public hall (often established by the efforts of the local
community) is a critical community facility. Maintenance of these halls in good
order, a programme to upgrade disability access and resolution of any insurance
liability issues are often important concerns facing local councils.
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Implementation Guideline No. 5—Social Infrastructure Planning
Catering for ageing populations
•
The capacity of the community to manage social infrastructure may be limited,
particularly in ageing areas.
There will often be high demand for services for older people, including recreation
and leisure facilities, as well as support services, home care and respite services.
There may need to be provision of services and employment support options
which encourage young people to stay in the area.
•
•
Catering for community diversity
•
There may be a particular need to ensure that facilities and services are suited to
the often high proportion of Indigenous residents in some rural centres.
The potential for housing affordability to attract more families and single people
may diversify the population base and lead to the need for new community
facilities and services.
There may be a need in some centres to respond to changing ‘tree-change’ type
demographics and population growth by residents with new expectations and
demands.
•
•
7.1.5
Social Infrastructure in Rural Residential Areas
It was noted above that social infrastructure is usually provided at the most basic
level in rural-residential areas. This level of provision sometimes conflicts with the
expectations of new residents, many of whom originate from cities and towns with
much higher levels of infrastructure available. Factors influencing the provision of
social infrastructure in rural-residential areas include:
Dispersion and isolation
•
The distance to existing facilities is often substantial, and rural-residential
residents will need to access most facilities out of their local area.
There will usually be a lack of population density to support any infrastructure
other than the most basic level of neighbourhood facilities.
The potential for isolation due to lack of public transport and lack of casual
interaction with neighbours is high and so there is a need for some meeting
space.
•
•
Basic neighbourhood level facilities
•
Basic neighbourhood-level facilities should be established in cooperation with
residents to help promote community development, opportunities for social
interaction, sport and leisure activities.
A community meeting room or club house may be provided attached to a
recreational facility and shared amenities.
A fenced children’s playground adjoining the meeting room is useful for the
holding of playgroups, etc.
Walking, exercise and horse riding trails can enhance the health of the
community.
There is likely to be poor social capital in the community due to lack of interaction,
and therefore there will be a need for programs such as playgroups which
support neighbourhood networks.
There will often be a need for services to support households occupied by
workers who commute outside the local area.
•
•
•
•
•
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Implementation Guideline No. 5—Social Infrastructure Planning
Information and communication technologies
Information and communication technologies (ICT) are becoming increasingly
effective in delivering social infrastructure, providing access to education and
training, and in community development. The role of ICT in facilitating integrated
approaches and cost-effective solutions is expanding, and is particularly important in
non-metropolitan areas where distance impedes access. For example, computer
terminals in pharmacies provide access to Medicare rebates in neighbourhoods and
rural communities, and community information is provided through local web pages.
ICT also has an impact on how communities, businesses, government agencies,
organisations and groups interact, and therefore on the development of social capital.
Libraries in particular play a strong role in providing public access to the wealth of
information and services available on the Internet, and this role is also fulfilled in
many community and youth centres.
State and local governments are constrained in the range of actions available to
them to influence investment in telecommunications infrastructure. Whilst there are
no comparative rates of provision for provision of ICT, considerations for social
infrastructure planning include:
• ensuring all residents have access to the Internet through either private or public
access
• exploring technologies that allow provision of community information and access
to government and community services
• ‘hardwiring’ new neighbourhoods and communities to enable provision of local
community information and opportunities for interaction
• programming (e.g. regular local news bulletins and computer training) to ensure
local ICT networks support personal and community development.
It is possible that, as new technologies and service delivery modes develop,
comparative rates of provision for other facilities and services will change. However,
in the foreseeable future, it is unlikely that ICT development will reduce demand for
facilities and other social infrastructure, although it may change the models of
facilities which are developed. This may result in higher comparative rates of
provision as distance becomes less of a factor, as is expected to be the case in
transit oriented communities.
The Commonwealth Department of Communications, Information Technology and
the Arts administers a range of programs and provides policy advice to support the
ICT sector in developing social and health infrastructure.
7.2
Design Considerations
The following general design and locational criteria should be considered for facilities
that require public access. Relevant considerations (e.g. facility size) will vary based
on a range of factors. For considerations relevant to specific types of facilities, refer
to Appendix 1.
Most facilities that require public access have the following requirements:
• flexible, multi-purpose buildings
• room configuration of varying, flexible sizes
• adequate storage for multiple user groups
• access for people with disability to all parts of building
• car parking and bicycle racks
• access for public transport at or near the entrance
• landscaping
• lighting and signage to enhance way finding and security
• clear signage from town centre.
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Implementation Guideline No. 5—Social Infrastructure Planning
Many facilities (such as libraries, art galleries and Meals on Wheels centres) also
require loading facilities.
7.3
Considerations for Specific User Needs
Most facilities should be multi-purpose and accessible for all user groups. However,
some specific user groups have particular needs that should be taken into
consideration in planning community facilities. These include:
7.3.1
People with Disabilities
• compliance with all relevant State and Commonwealth legislation regarding
access and equity (including the Commonwealth Disability Discrimination Act
1992, Disability Services Act 2006, Anti-Discrimination Act 1991, and the Building
Code of Australia)
• ensure accessibility from public thoroughfares and car parks
• ensure full disability access to all new buildings
• implement a program of gradual upgrading to increase the accessibility of existing
facilities, with priority to be given to entry ramps, accessible toilets and car
parking
• connected with a suitable pedestrian network.
7.3.2
Children
• compliance with statutory requirements for the form and size of child care centres
(including the Child Care Act 2002, Child Care Regulation 2003, and the Building
Act 1975 requirements, including Part 22: Child Care Centres of the Queensland
Development Code)
• compliance with car parking requirements (as specified in the council’s planning
scheme)
• provision for multi-purpose use, including long day care, some preschool type
places and occasional care
• preferably located with other community facilities (e.g. community centre,
schools)
• located on public transport route
• compatible with adjoining land uses in terms of traffic, air quality and noise
impacts, and social impacts.
7.3.3
Young People
• casual drop-in capability
• affordable/no cost
• provision for weekend, evening and everyday use
• design that appeals or is relevant to young people
• suitable for amplified music and dancing
• include activities/ quipment of interest to young people, including computers,
games and sports
• accessible by regular weekday, weekend and, ideally, evening bus services
• connected to bicycle and pedestrian networks
• adjoining recreation facilities.
7.3.4
Older People
• minimal use of steps and steep gradients
• site legibility
• clear signage
• on-site storage
• inexpensive hire cost
• kitchen facilities
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Implementation Guideline No. 5—Social Infrastructure Planning
•
•
•
7.4
adequate parking, including parking for minibuses and carers
adequate drop-off facilities
accessible by regular weekday and weekend bus service.
Detailed Considerations for Services
The Queensland Government, working in co-operation with community agencies, has
primary responsibility for the funding and implementation of preventative,
interventional and support services. Thus, most health services, family services,
youth support and aged care services are provided by the State, with some
Commonwealth assistance. Local governments provide community, cultural and
health services that enhance quality of life for all residents, including libraries,
community and recreational facilities, information, events, emergency recovery,
cultural services, and health promotion. The private sector also has a role in service
provision, including medical, allied health, education and training services.
There are significant social infrastructure needs in SEQ. Because of the region’s
rapid growth, meeting these demands is challenging, with implications for the health
and wellbeing of communities. There is a need for a sustained, long-term effort to
ensure service supply grows with demand—to meet the needs of existing residents,
as well as new residents migrating to the region.
Consultation with councils, agencies and communities should therefore be
undertaken early on in the planning process to:
•
•
•
clarify needs and develop an order of priorities
identify existing and planned responses by community and government agencies
confirm respective roles in achieving an appropriate level of services.
The Guidelines do not include comparative rates of provision for services, as few
comparative rates of provision exist, and desired levels of services are dependant on
local needs and the local hierarchy of provision. Funds for new services are provided
by government agencies based on expressed needs, current policy priorities and
geographical equity.
See Appendix 2 for a list of the types of services that should be considered.
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Implementation Guideline No. 5—Social Infrastructure Planning
8
This section discusses social infrastructure provision and
implementation, identifying roles and responsibilities, links to
statutory and other planning and delivery mechanisms, and
funding and monitoring.
Implementation
8.1
Funding Context
and the Requirement
for Innovation
In Australia, there are
many players involved in
the provision of
infrastructure, with few
formal mechanisms for
integrated planning.
Commonwealth, State,
council, community, private
and hybrid entities hold
disparate responsibilities
for funding and planning
the provision of social
infrastructure. The
flowchart below shows the
variety of mechanisms
which interact in the
provision of social
infrastructure for a
community.
Profiling
P
a
Analysis/Assessment
r
t
i
c
Provision and Implementation
i
p
•
Identify roles and responsibilities
a
•
Develop strategies and action plans
•
Establish links to statutory planning and
t
i
other delivery mechanisms
o
n
•
Funding options and mechanisms
•
Establish monitoring framework to
ensure responsiveness to changing
needs
The Queensland Government produces an annual State Budget and individual
departmental proposals for social infrastructure are considered as part of this
process. Regional budget statements highlight Budget initiatives in regional areas
across Queensland.
For over a decade, Commonwealth and State governments have been devolving
responsibilities for some social infrastructure provision to local governments, the
community and the private sector. While local governments have become pivotal
players in planning and co-ordinating social infrastructure provision at the local level,
they frequently struggle with the task, as funding is scarce and often sourced from
multiple levels of government and the private sector. There are some channels for
co-ordinating infrastructure at the State level or between State and local
governments, but these are primarily informal (refer to Section 8.5).
As noted in Section 2, several funding and delivery mechanisms were made
available to local and State governments through the Integrated Planning Act 1997 to
assist in the delivery of social infrastructure. Mechanisms include Priority
Infrastructure Plans (PIP) and the related Infrastructure Charges Schedules (ICS).
Local governments often rely on these mechanisms to provide them with the capital
required for social infrastructure, however a PIP can only identify the land for
community infrastructure and an ICS can only include the cost of the land and works
to the land. Because infrastructure charges in Queensland cannot be collected for
community assets (i.e. built structures) and because councils rarely impose
infrastructure charges on existing residents, this means of finance often recovers
only a small proportion of the funds required for the land and initial infrastructure.
The legislation does not allow for charges to be collected for the recurrent costs of
maintaining the infrastructure or service.
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Implementation Guideline No. 5—Social Infrastructure Planning
Figure 3 Mechanisms that Assist in the Provision of Social Infrastructure
Mechanisms
SEQ Regional Plan
(SEQRP)
SEQ Infrastructure
Plan and Program
Growth
management policy
basis - Sets strategic
direction
Regionally significant
infrastructure:
transport, water,
education, health and
recreational
infrastructure
SEQRP
LGMS
Strategic land use and
strategies regarding
housing
SEQRP
Structure Plans
Development
infrastructure, State
and Local
government Social
infrastructure
State/Local Infrastructure
PIPs
Agreements
Voluntary agreements
between State/Local and
developers potentially for all
infrastructure
PIPs
ICSs
(Planning Scheme)
(Planning Scheme)
Development
infrastructure,
including land and
required community
infrastructure
Cost apportionment for
development
infrastructure including
land and works to the
land for community
purposes (no assets)
Other Policies
and programs
C’wealth, State &
Local Gov’mt
special purpose
grants, subsidy
programs and
capital works
programs (See App.
4 for details)
Infrastructure Types
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Implementation Guideline No. 5—Social Infrastructure Planning
The result is that existing gaps in provision for established communities and new
assets for future communities need to be funded through other means.
Due to the devolution of responsibilities, the scarce resources generally available,
and the limited resources that can be generated by infrastructure charges for social
infrastructure, governance structures at all levels are now promoting greater
interdependence between public, private and community sectors. In Queensland,
this shift is reflected in the SEQ Regional Plan, which has developed a stronger
framework for integrating the timely delivery of a range of infrastructure by State and
local governments and the private sector. As mentioned at the outset, this is being
reflected in some of the innovative models of provision that have emerged over the
last decade and are now becoming more common. They include:
•
•
•
•
•
Private–Public Partnerships
co-location of facilities and services
use of cross-subsidies
infrastructure agreements with developers
collaboration and integrated service delivery.
Some examples of innovations from Australia and overseas are provided in Appendix
3.
Notwithstanding the outstanding success of many innovative solutions, innovation in
delivery, and particularly in co-location, has not always been successful. Among the
examples cited has been flexible leasing arrangements between educational
institutions and other community organisations wishing to use parks, sports ovals and
aquatic centres outside of school hours. In many cases, these relationships failed
due to misunderstandings between the parties, movement of the personnel who
made the initial agreement and/or increased use by the principal holder of the land.
This example illustrates the importance of ensuring that the checklist for co-location
(refer to Section 6.3) is thoroughly considered, and that clear, agreed and formal
understandings are established at the outset.
8.2
Roles and Responsibilities
As noted above, there are many roles and responsibilities associated with the
adequate provision of infrastructure. The State Government is the main provider of
education, health, police and emergency services, and higher levels of cultural/
exhibition facilities. The remainder of facilities are largely funded through local
government resources (such as rates or infrastructure charges), often with the
assistance of State grants and subsidies. The private sector also plays a role and, in
some instances, negotiated agreements can assist in the provision of infrastructure.
The role of statutory planning, funding and delivery mechanisms for social
infrastructure (as described in the Integrated Planning Act 1997) is important to
include in these Guidelines, as they relate to regional land use planning processes.
However, it should be noted that mechanisms such as Priority Infrastructure Plans
and Infrastructure Charges Schedules are not key mechanisms for funding social
infrastructure. They are only a small component of the overall social infrastructure
funding options. As shown in Figure 3, the Commonwealth, State and local
governments provide a range of special-purpose grants, subsidy programs and
capital works programs to fund social infrastructure. A list of grants and other funding
sources available for community infrastructure (as at 2006) is provided in Appendix 4.
Whilst grants and subsidies are available to fund components of social infrastructure,
access to grants is not guaranteed, and funding for long-term, ongoing operational
costs is rarely provided.
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Implementation Guideline No. 5—Social Infrastructure Planning
8.3
Linking to Statutory Planning, Funding and Delivery Mechanisms
As noted earlier in this section and in Section 2, the Integrated Planning Act 1997
provides several mechanisms to improve the coordination and funding of urban
infrastructure. These mechanisms impact on the provision of social infrastructure in
a number of ways, including:
•
•
•
•
•
•
•
•
designation of land for community purposes
Local Growth Management Strategies within the SEQ Regional Plan
structure planning within the SEQ Regional Plan (with the potential link to State
Infrastructure Agreements)
Priority Infrastructure Plans
Infrastructure Charges Schedules and Regulated Charges
impact mitigation costs
infrastructure agreements
planning schemes and Local Area Plans.
Brief descriptions of how infrastructure can to be linked to these mechanisms are set
out below. In addition, there is a discussion on linking to capital works programs and
development approval processes.
Land designated for community infrastructure
The Integrated Planning Act 1997 (IPA) allows State ministers and local governments
to designate land for community infrastructure, thereby preventing this land from
being lost to other uses, or from being compromised through the location of
incompatible uses nearby. This is a very important consideration for social
infrastructure planning.
Land can be designated for a broad range of community infrastructure, ranging from
aeronautical facilities to educational facilities and local parks. Community
infrastructure (defined in Schedule 5 of the IPA and noted in Appendix 5 of these
Guidelines) of relevance to these Guidelines includes:
•
•
•
•
•
•
•
cemeteries and crematoriums
community and cultural facilities, including child-care facilities, community
centres, meeting halls, galleries and libraries
educational facilities
emergency services facilities
hospitals and associated institutions
parks and recreational facilities
any other facilities not mentioned (intended primarily to accommodate
government functions).
Councils and the State need to ensure appropriate investigations and consultations
have been undertaken to support the community purposes designation.
Designations can apply to:
•
•
land that does not currently host community infrastructure but which is intended
to in the future
land that already hosts community infrastructure and where an intensification of
the current use is planned—to such a degree that the alteration will constitute a
‘material change of use’.
To qualify for designation, the community infrastructure must pass the public benefit
test. This means that the designator must be satisfied that the development will
either:
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Implementation Guideline No. 5—Social Infrastructure Planning
Public benefit test
‘(a) Facilitate the implementation of legislation and policies relating to
environmental protection or ecological sustainability; or
(b) Facilitate the efficient allocation of resources; or
(c) Satisfy statutory requirements or budgetary commitments of the State or local
government for the supply of community infrastructure; or
(d) Satisfy the community’s expectations for the efficient and timely supply of the
infrastructure.’
s2.6.2, IPA 1997
As specified in Schedule 6 of the IPA, there are two parts to the designation process.
Part 1 is the Consultation Stage and Part 2 is the Designation Stage. A brief
summary of this is included in Appendix 5 of these Guidelines. However, the Act
should be referred to when undertaking these processes.
To assist the designation process, a protocol can be developed. An example of a
designation protocol is provided in Appendix 5.
Education Queensland has successfully designated some of their facilities in the past
(e.g. Capalaba State School).
Local Growth Management Strategies
A Local Growth Management Strategy (LGMS) essentially provides strategic
guidance for achieving the objectives of the SEQ Regional Plan. Although issues
associated with the planning and coordination of social infrastructure can be
highlighted in an LGMS, this infrastructure is primarily dealt with through other
channels, some of which are mentioned below (e.g. Priority Infrastructure Plans and
Infrastructure Agreements). The exception to this is State-level infrastructure, which
will need to be considered at the LGMS stage.
The minimum planning horizon for an LGMS is to 2026. Core matters to be
addressed include land use and development, and infrastructure. The areas that
are required to be addressed in an LGMS are noted in Appendix 5.
Structure Plans
A Structure Plan is required for any area in SEQ designated by the Regional
Planning Minister as a Major Development Area. An ‘essential element’ of the
Structure Plan is an ‘infrastructure proposal’ (which must be consistent with the
South East Queensland Infrastructure Plan and Program 2006–2026). Private and
public organisations should collaborate in producing the Structure Plans, so that the
consideration of infrastructure requirements is comprehensive.
When developing a Structure Plan, the following should be considered:
•
•
infrastructure demands likely to be associated within the Structure Plan area
wider regional connections to SEQ and therefore the higher-order infrastructure
requirements
spatial plan and supporting document that indicates the intent of the Structure
Plan, the infrastructure required and its optimum location
communications/consultation method that ensures infrastructure demands can be
met in a timely manner.
•
•
Once finalised, elements of the infrastructure proposal should be reflected in the
Priority Infrastructure Plan and associated Infrastructure Charges Schedules.
Furthermore, all the outcomes of the Structure Plan will need to be incorporated into
the local government planning scheme and any State Government works schedules.
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Implementation Guideline No. 5—Social Infrastructure Planning
The Structure Plan will then become a part of the SEQ Regional Plan. Suggested
processes to prepare and incorporate Structure Plans into various local and State
government instruments are provided in the SEQ Regional Plan Implementation
Guideline No. 4: Structure Plans at
http://www.oum.qld.gov.au/docs/pdf/StructurePlanGuideline.pdf.
Priority Infrastructure Plans
A Priority Infrastructure Plan (PIP) identifies future infrastructure requirements and
sets out strategies to deliver infrastructure in a timely manner. Of importance to
social infrastructure planning are desired standards of service (DSS) and plans for
trunk infrastructure (PFTI). DSS are statements regarding the standard to which the
local government authority aims to deliver the infrastructure in question. PFTI are
plans that identify the trunk-level infrastructure required to service the existing urban
area and areas that can service between 10–15 years of growth. PFTI are based on
explicit development parameters expected over the next 10–15 years and the DSS.
Trunk-level social infrastructure can be defined by the local government authority, but
usually comprises all the types of infrastructure for which the council is mainly
responsible. In addition, the PIP should be consistent with the Local Growth
Management Strategy.
The Department of Local Government, Planning, Sport and Recreation has
developed guidelines for the preparation of a PIP. They can be found at
http://www.ipa.qld.gov.au/docs/Forms/Infrastructure/Guidelines/Guideline_1_04.pdf.
Infrastructure Charges Schedules
The Integrated Planning Act 1997 permits up-front infrastructure charges for
necessary ‘development infrastructure’ items (see Appendix 5). Charges for
‘development infrastructure’ items are identified in an Infrastructure Charges
Schedule (ICS) that makes this relationship explicit. The items to be funded, the
estimated timing of provision, the actual charges, the catchments to which they apply
and the liable development need to be identified in the ICS.
In relation to social infrastructure, the definition of development infrastructure (see
Appendix 5) states that only the costs of the land and works to the land can be
recovered from ICSs, as opposed to the facility itself. The facility must also be for
general or multi-purpose use. A process to include infrastructure in an ICS includes:
•
•
•
•
Defining the area within which infrastructure charges are to apply. This is usually
the Urban Footprint or Priority Infrastructure Area of the local government
authority, but ICSs can also be made specifically for components of these areas.
Ensuring that the plans for trunk infrastructure are in line with the desired
standards of service and the projected development over the next 10–15 years.
Costing the infrastructure. This should include costs regarding land values and
also assets to be hosted on the community land. Land values should be sourced
from an approved land valuer, and assets should be based on actual expected
capital costs associated with the infrastructure.
Determining the infrastructure charges by dividing the value of the infrastructure
(land and works to land only) by the value of the projected demand.
Any local government authority developing an ICS is required to follow the
infrastructure guidelines developed by the Department of Local Government,
Planning, Sport and Recreation. They can be found at
http://www.ipa.qld.gov.au/docs/Forms/Infrastructure/Guidelines/Guideline_2_04.pdf.
Once completed, the ICS must be incorporated into the planning scheme. The
processes required are found in Schedule 1 of the Integrated Planning Act 1997.
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Implementation Guideline No. 5—Social Infrastructure Planning
Impact mitigation payments, additional payments for unexpected infrastructure
The development parameters and the resultant plans for trunk infrastructure are very
important components of a Priority Infrastructure Plan (PIP), as further payments
can be conditioned to developers if proposals occur outside of development
expectations (either in scale or form). These payments have limited application for
local community facilities (as development infrastructure is defined as ‘land and
works to the land for community purposes’). These are known as impact mitigation
costs and are described in detail in Appendix 5.
If additional payments are for infrastructure inside the PIP, but outside the
development parameters, then the difference between the establishment cost under
the PIP and that required by the unexpected development can be sought. If
payments are being sought for infrastructure outside the PIP, the costs that can be
recovered include:
•
•
all of the establishment costs of the infrastructure
any payments for temporary construction that is required to ensure the safe or
efficient operation of the additional infrastructure required by the development
any payments for the removal or dismantling of the temporary construction that is
required to ensure the safe or efficient operation of the additional infrastructure
required by the development
maintenance and operating costs of the infrastructure for up to five years.
•
•
These charges become a condition of approval and therefore the ‘reasonable’ and
‘relevant’ arguments to the development in question need to be supported.
Voluntary Infrastructure Agreements
Nothing in the Integrated Planning Act overrides the local government authority’s or
the State’s desire to secure infrastructure agreements with willing parties. These are
written agreements between the council/State and developers/ land owners that
satisfy both parties. The legislation (the IPA) regarding these agreements is provided
in Appendix 5 of these Guidelines.
Local Area Plans
Where a council requires further detail regarding the layout of strategic locations,
Local Area Plans can be included in planning schemes. Local Area Plans are
effectively broad master plans for areas, highlighting detailed design and locational
criteria. Where social infrastructure is considered critical in local areas, it is
recommended that the locations be nominated and the land either zoned or
designated for community purposes.
8.4
Links to Other Local Government Processes
Operational and capital works programs
In order to ensure that infrastructure is provided in a local government context,
explicit links to operational and capital works programs should be established.
Accordingly, regular assessments regarding population changes and development
approvals need to be carried out. These assessments should include ‘triggers’ that
signal when population thresholds for social infrastructure are being reached. In
addition, a formal process should be established for assessing the appropriateness
of including the infrastructure in operational and capital works budgets; and regular
reviews of operational and capital works programs should be undertaken. Facility
and service provision assessments should allow sufficient lead times to ensure
funding can be secured and infrastructure constructed.
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Implementation Guideline No. 5—Social Infrastructure Planning
Links to Development Assessment Processes
A planning scheme establishes the regulatory framework of where and how land can
be developed. It therefore has important implications for the provision of community
facilities and services. The following considerations need to be made in ensuring
that the regulatory provisions of planning schemes are compatible with desired social
infrastructure planning outcomes:
•
Land use definitions and development assessment tables should support the
distribution of community facilities and services sought in the social infrastructure
plan.
• Planning scheme impact assessments should consider:
− any potential impacts the development may have on existing or designated
community facilities and services
− any potential demands for community facilities and services and the capacity
of existing infrastructure to meet these demands (including, but not limited to,
industrial, residential and tourism development)
− impact of proposed community services or facilities on existing communities
(where not already designated as ‘community infrastructure’)
− potential to help achieve planned community services or facilities through
infrastructure agreements or other negotiated outcomes.
• Community facilities should be designed and sited according to the requirements
appropriate to the facility.
• Triggers that initiate consultation with the relevant council, State Government or
non-government agencies in relation to a proposed community facility should be
included.
8.5
Community Capacity Building
Whilst much social infrastructure is provided by State and local governments, the
community sector has a significant role in the provision and delivery of facilities and
services. This occurs at the local level (e.g. the management of kindergartens and
out-of-school-hours care, and fundraising for the construction of facilities such as
scout halls), at the district level (e.g. diocesan management of family support
services, and community-based resourcing of refugee claimants), and at the State
level (e.g. provision of state-wide information and telephone counseling services, and
resource networks supporting rural services).
Communities require both physical and social resources to enable them to play a role
in social infrastructure provision. Infrastructure such as facilities and services are
tangible resources; social capital (sometimes described as ‘the economy of joint
effort’) is intangible but integral to the maintenance of social resources. Key elements
of social capital include communication, leadership, learning and collaboration.
Facilities and services not only benefit from such capital, they nurture it by providing
opportunities for participation and co-operation. By building social capital, we build
capacity for involvement in social infrastructure planning, management and delivery.
In greenfield communities, this requires an inclusive community development
program to generate social capital and resourcing from agencies to support new
initiatives. In infill communities, it may require investment in community development
programs aimed at bridging new and existing communities.
When developing a social infrastructure plan, it is important to consider the
community’s capacity to implement the plan (i.e. to manage facilities and services),
and to help resource their capacity as needed. It is also important to ensure that
community members who are not members of established organisations have
opportunities for involvement, in order to expand the pool of people with capacity for
involvement (as outlined in Section 4.1.1).
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Implementation Guideline No. 5—Social Infrastructure Planning
The SEQ Regional Plan provides clear support for community engagement in
planning processes, establishing partnerships to enhance community engagement
and capacity building, and targeting community capacity building in areas undergoing
significant change (see p. 54 of the Plan).
Of relevance also is the Department of Communities’ initiative aimed at
organisational capacity building, called Strengthening Non-Government
Organisations (NGOs). The strategy has a number of sub-projects which are
designed to:
•
•
increase transparency and clarity about what is expected from the NGO sector
improve the Department’s management of funding for community services and
their business relationships with the NGO sector
support NGO operations
provide opportunities for collaboration between NGOs and other relevant
stakeholders.
•
•
8.6
Partnerships
Partnerships between agencies responsible for planning and providing social
infrastructure are critical to successful delivery, and provide the basis for innovative
responses and stronger service delivery arrangements.
There are a number of existing mechanisms to support partnerships in planning
processes. At the local level, most areas have a range of community organisations
active in some form of social infrastructure development or management. At district
and Local Government Area (LGA) level, interagency forums exist in many areas.
Other special-purpose planning partnerships are also established in LGAs to facilitate
integrated planning and co-ordination (e.g. the Northern Growth Corridor Social
Infrastructure Plan Project, a partnership between the Gold Coast City Council, the
Department of Communities and the Northern Gold Coast Community for Children
Program).
At a sub-regional level, Regions of Councils (ROCs) facilitate co-ordination between
local governments in research, regional strategies, resource sharing, advocacy and
brokering central government programs. ROCs are also open to approaches from
government and non-government organisations.
The Regional Manager’s Co-ordination Networks (RMCN), established by the State
Government, also operate at the sub-regional level and provide an avenue for local
government to work with State agencies. Through the RMCN, regional managers of
State Government agencies meet regularly to examine ways in which they could
work together to improve the way services are provided to communities across the
State.
The Council of Mayors (SEQ) is an additional mechanism which is developing a
strong role in advocating regional priorities for planning and infrastructure.
Requirements for successful partnerships for social infrastructure delivery include:
•
•
•
•
•
shared or compatible goals and visions, and agreed objectives
clear roles and responsibilities
a focus on shared outcomes
good relationships, including trust and mutual confidence
strong framework for accountability, including transparent structures and a review
framework
a coordinating structure, and effective leadership
flexibility in funding mechanisms and in service responses
organisational commitments.
(Derived from ‘Partnerships for service delivery: review of research and
•
•
•
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Implementation Guideline No. 5—Social Infrastructure Planning
practice literature’, for Department of Communities, 2004.)
The key roles of agencies supporting partnerships include maintaining flexibility in
funding options, providing strategic direction, and promoting cross-sector
involvement.
8.7
Monitoring
Monitoring refers to the collection, analysis and reporting of information about how
social infrastructure is performing against:
•
•
•
•
•
service and facility-based objectives
desired standards of service
agency objectives and policy
SEQ Regional Plan objectives
existing and emerging community needs.
At the service or facility level, monitoring requires the collection and reporting of
information about the quantity and quality of services delivered, their effectiveness in
meeting the needs for which the infrastructure was developed, and their capacity to
meet emerging needs. Where partnerships are developed to deliver social
infrastructure, effectiveness in terms of both shared and individual (agency) goals
should also be monitored. Ideally, monitoring is undertaken within an ongoing
cycle—planning, delivering, monitoring, review or evaluation, and renewed planning.
The challenge is to ensure that common objectives, information protocols and
processes are established by the partners to ensure that monitoring is an integral
part of service delivery and facility management.
Each local government reviews its performance against its corporate or community
plans, which should outline desired standards of service. Elected representatives and
community development staff also play a key role in identifying and advocating for
community needs. Many councils extend their monitoring and reporting work to
tracking changes in social indicators such as socio-economic distribution, housing
access, and employment levels, as part of a commitment to sustainability or ‘triple
bottom line’ reporting. Some suggested tools for monitoring are shown in the table
below.
Table 11: Suggested Tasks for Monitoring Progress
Monitoring
Baseline
information
Suggested tasks
• establishment of a clear baseline position
• clear articulation of desired objectives and desired standards of
service
• clear articulation of intended timeframe, work plan, outcome
• clear articulation of key performance measures.
Gathering
information
•
•
•
•
•
•
•
•
Evaluation
•
•
discussions with community, business and government service
providers
websites
workshops
phone-in and email comment
inter-agency forums
think tanks
working groups
action research
determination of progress against key performance measures,
using a variety of information
determination of appropriateness of keeping original objectives,
work plans, etc.
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Implementation Guideline No. 5—Social Infrastructure Planning
Reporting/
information
provision
•
•
•
•
clearly articulate progress
clearly articulate changes/reviews required
review objectives and desired standards of service to ensure
currency
feed information back to all participants.
At the State Government level, each department charged with delivering social
infrastructure has a monitoring program, supported by information collected as part of
funding submissions, service agreements and funding reconciliations. Some
agencies also have well-established data collection systems. The challenge is to
ensure that data is shared across agencies and departments, and framed to address
multiple objectives at community, region and whole-of-government levels. The
recently developed Communities Statistical Information System (COMSIS)—built and
maintained by the Office of Economic and Statistical Research (OESR) in
cooperation with several State agencies—aims to coordinate the provision of
information to support monitoring.
At the regional planning level, the State Government has initiated a State of the
Region Sustainability Indicators project. A baseline review of sustainability indicators
has been completed, and a State of the Region Report will be produced as part of
the five-year review of the SEQ Regional Plan. The implementation of the Plan’s
policies is monitored separately. PIFU has a key role in monitoring infrastructure
development in SEQ.
In addition, the Office of Urban Management, in co-operation with the CoordinatorGeneral and OESR, has established an Urban Development Monitoring Program.
The program will be developed in three stages, with the first stage (in operation)
focusing on dwelling activity, lot production/consumption/registration/approvals, and
median house, unit/townhouse and vacant land sales. It is anticipated that the
monitoring of commercial and industrial development will begin in 2007. Following
the release of the Local Growth Management Strategies, the Urban Development
Monitoring Program will also investigate and monitor land supply and availability.
Queensland Treasury is currently developing a Project Assurance Framework (PAF)
which, along with supporting guidance material, will set the foundation for ensuring
that project management is undertaken effectively across the Queensland Public
Sector, and that the State Government achieves value for money from its significant
investment in project activity. The PAF guidance material encourages consideration
of a range of approaches in responding to an identified service objective and
provides assistance in assessing the costs, benefits and risks of options to achieve
an objective. Information on the PAF can be found on the Queensland Treasury web
site: http://www.treasury.qld.gov.au.
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9
Resources
9.1
Profiling and Analysis
There are numerous information sources available that provide data to inform social
infrastructure profiling and analysis, as outlined below:
Australian Bureau of Statistics
Censuses of Population and Housing and other statistical information: The
Australian Bureau of Statistics (ABS) releases a wealth of information to support
national, regional and local area population analysis, including a population census
conducted every five years, population updates and projections, data on specific
populations, the labour force, social trends, indices of relative advantage and
disadvantage, and reporting against social capital indicators. Data is available on the
ABS website at: http://www.abs.gov.au.
Office of Urban Management (OUM), Department of Infrastructure
Urban Development Monitoring Program: The program’s urban development
monitoring reports focus on dwelling activity, lot
production/consumption/registration/approvals, and median house, unit/townhouse
and vacant land sales. The reports are produced quarterly, with an annual report
published after the fourth quarter. (Appendix C of these Guidelines (p. 25) shows
dwelling approvals by Local Government Area, which may be useful.)
These reports are now available on the OUM website at www.oum.qld.gov.au. The
Planning Information Forecasting Unit is undertaking this monitoring and should be
contacted to obtain data at a lower level of geography, if required.
List of Major Development Areas (MDAs) in SEQ: Most of these MDAs are
residential (three in the current list are industrial: Bromelton, Swanbank/New Chum
and Willowbank/Ebenezer). The list of MDAs is available on the OUM website at
www.oum.qld.gov.au.
Planning Information Forecasting Unit (PIFU), Department of Local
Government, Planning, Sport and Recreation
Population projections: The population projections for SEQ—by Local Government
Area (LGA)—have recently been updated by the Planning Information Forecasting
Unit (PIFU). PIFU provides these updated projections twice during the five-year
period between censuses. Population projections data can be purchased from PIFU
at LGA, Statistical Local Area (SLA) and Census Collector District (CCD) level.
Broadhectare studies: These measure future residential land supply by Local
Government Area level. The land identified in the studies is the first stage in the land
development pipeline and includes parcels of land that are identified as suitable,
potentially available and serviceable for future residential development. The studies
list proposed development in time spans of 0–2 years, 2–5 years, 5–10 years and 10
years plus.
These studies can be purchased from Planning Information Forecasting Unit (see
http://www.lgp.qld.gov.au/?id=196).
Population and housing fact sheets: These provide a handy summary of data by
Local Government Area, including the latest estimated resident population,
population projections and dwelling approvals. They are available at
http://www.lgp.qld.gov.au/?id=198.
Residential Land and Dwelling Activity Monitor: This is a quarterly publication
produced by the Planning Information and Forecasting Unit (PIFU). The key objective
of the publication is to assist government and industry in their forward planning for
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Implementation Guideline No. 5—Social Infrastructure Planning
urban infrastructure by providing information on residential land supply and dwelling
activity. It includes information about:
• lot approvals and lot production
• registration and consumption of allotments
• registration by size of allotment
• vacant residential land sales
• dwelling approvals by type of dwelling.
The publication can be purchased from PIFU (see
http://www.lgp.qld.gov.au/?id=291).
Housing Update: This publication provides more detail on dwelling approvals at the
Statistical Local Area level and can be accessed at
http://www.lgp.qld.gov.au/?id=221
Office of Economic and Statistical Research (OESR), Queensland Treasury.
OESR profiling tools
Queensland regional profiles: The OESR offers a web-based tool that allows users
to produce profiles based on the latest statistics available for Queensland regions.
Users can select from a list of topics and choose a region to create a report featuring
regional-level economic, social and demographic information (Statistical Division and
Local Government Area data).
http://statistics.oesr.qld.gov.au/qld-regional-profiles/home.do?action=init
Local Government Area profiles: The Local Government Area (LGA) profiles are
standardised statistical reports based on a region of your choice. You can select a
single LGA or multiple LGAs to create your own user-defined region. A customised
report based on the selected region/s is then generated. Topics including population
(including growth rates), business, building activity, agriculture and employment are
covered in each report. Each report utilises the most recent data available for each
topic.
http://www.oesr.qld.gov.au/publications/profiles/lga_profiles/index.shtml
Queensland Regional Statistical Information System (QRSIS): QRSIS is a
database containing time series of a variety of data for regions throughout
Queensland. State and local government employees have full access to all QRSIS
collections, including data purchased for the Queensland Government from the
Australian Bureau of Statistics (ABS). Additionally, agency-specific systems can be
developed by the OESR.
http://www.oesr.qld.gov.au/online_services/online_tools/qrsis/qrsis_datahub.shtml
Thematic mapping: The thematic mapping tool allows users to map data from
selected collections in QRSIS. The thematic maps of Queensland provide a unique
and informative representation of the state’s economy, people and regions. Thematic
maps allow for quick identification of data relationships and comparisons between
small-area geographic regions.
Characteristics such as persons aged 65 and over, gross value of crops, nonresidential buildings approved and persons born overseas can be viewed and
analysed thematically for both Local Government Areas and Statistical Local Areas.
http://maps.oesr.qld.gov.au/thematics/index.jsp
9.2
Participation
Six guiding principles provide the basis for improved community engagement in
Queensland Government processes:
•
•
Inclusiveness—connecting with those who are hardest to reach.
Reaching out—changing the ways the government and community work together
for the better.
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Implementation Guideline No. 5—Social Infrastructure Planning
•
•
•
•
Mutual respect—listening, understanding and acting on experiences different
from our own.
Integrity—engagement as a means of promoting integrity in the democratic
processes of government.
Affirming diversity—changing the processes of government to incorporate diverse
values and interests.
Adding value—government and citizens working productively together to add
value in policy development and program and service planning.
The Department of Communities supports best practice and capacity building in
community engagement across the public sector and the community.
The Queensland Government site (www.getinvolved.qld.gov.au) contains links to a
range of useful tools.
Other guides to good practice are listed below:
What
Queensland Government community
engagement resources and links
Local Government Association of
Queensland policy statements: community
development, and community services
Strong Communities Handbook— Chapter
2: Community Engagement
Local government consultation and
engagement (Victoria)
Consulting Citizens: A Resource Guide
(2002), Department Of The Premier And
Cabinet, Western Australia
International Association for Public
Participation (IAP2), Australasia
Community Participation in Practice, A
Practical Guide, by Sarkissian, W, Cook,
A, Walsh, K (1997), ISTP Murdoch
University
Community Participation in Practice, New
Directions, by Sarkissian, W, Hirst, A,
Walton, S (2003), ISTP Murdoch
University
Improvement and Development Agency
(United Kingdom)
Contact
www.getinvolved.qld.gov.au
www.lgaq.asn.au
www.oum.qld.gov.au
www.vlgaconsultation.org.au
www.ccu.dpc.wa.gov.au
www.iap2.org.au
www.istp.murdoch.edu.au
www.istp.murdoch.edu.au
www.idea-knowledge.gov.uk
73
Implementation Guideline No. 5—Social Infrastructure Planning
References
Australian Local Government Association & Australian Council for the Arts (1997),
Cultural Development Collaborative Benchmarking
BBC Consulting Planners (1997), Planning Targets For Community Services, Final
Report, prepared for Department of Families, Youth and Community Care
Briggs (1992), Guidelines and Methodology for the Application of Developer
Contributions for Social Infrastructure—With a Focus on Queensland,
Commonwealth Office of Local Government and Department of Immigration, Local
Government and Ethnic Affairs, Australian Government Publishing Service
Briggs S (1993), Funding Local Social Infrastructure, Challenges for Local
Government, proceedings of a workshop and local government case studies,
Commonwealth Office of Local Government, Commonwealth Department of Human
Services and Health, Australian Government Publishing Service
Briggs S (1996), Location Guidelines for Community and Recreation Facilities, Draft,
ACT Planning Authority
Briggs S, Elliott D, and Young A (2005), Community Facilities and Services Strategy,
Final Report, prepared for Maroochy Shire Council
Collaborations, ID Consulting and Essential Economics (2001), Docklands
Community Development Plan 2001–2016, Melbourne Docklands
Community Services Benchmarking Project (1997), Community Facility Management
Best Practice List
Department of Communities (2005), Needs Based Planning and Resource Allocation
Framework, First Edition.
Department of Family Services and Aboriginal and Islander Affairs (1990), Design
Considerations for Child care Centres
Department of Local Government (1990), Development of Community Facilities—A
Guide to Feasibility Research, Critical Path Planning and Approvals
Department of Local Government and Planning (2003), Issues and Options for Social
Justice and Human Services, SEQ 2021, Discussion Paper
Department of Local Government, Planning, Sport and Recreation (2004),
Implementation Guide for the Preparation of a PIP (available online at:
http://www.ipa.qld.gov.au/docs/Forms/Infrastructure/Guidelines/Guideline_1_04.pdf)
Site accessed: 30/09/06
Department of Local Government, Planning, Sport and Recreation (2004),
Infrastructure Guideline for Developing an ICS (available online at:
http://www.ipa.qld.gov.au/docs/Forms/Infrastructure/Guidelines/Guideline_2_04.pdf)
Site accessed: 30/09/06
Elliott D and Young A (2002), Caloundra Community Planning Study, Volumes 1–4,
Caloundra City Council
Farrar A, Ross E, Turner D (1991), Let Them Eat Crumbs—the Development and
Use of Service Benchmarks in Planning For Community Services, New South Wales
Council of Social Service
74
Implementation Guideline No. 5—Social Infrastructure Planning
http://www.latrobe.edu.au/publichealth/Units/phe41_51pde/phe41_51_programs_nee
ds-demands.pdf#search=%22comparative%20and%20normative%20needs%22
(accessed 5/9/06);
Local Government Association of Queensland (1996), Social Planning Guidelines for
Queensland Local Government, by Menzies C, Heywood P, Nivison-Smith I, Rogan
B
Local Government Association of Queensland (2001), A Guideline for Integrating
Community Wellbeing in Planning Schemes
Local Government Association of Queensland (2003), Embracing Cultural Diversity—
Action Guide to Community Relations for Queensland Local Governments
Local Government Community Services Association Australia (1999), Good Practice
and Benchmarking in Local Government Community Development and Community
Services
M & P Henderson and Associates (2004), Partnerships for service delivery: review of
research and practice literature, Department of Communities, Queensland
Government
Municipal Association of Victoria (1990), Local Government Human Services
Planning Framework
NSW Department of Local Government (2002), Social and Community Planning and
Reporting Manual
Office of Local Government, Commonwealth Department of Human Services and
Health (1994), Strategic Local Government Approaches to Infrastructure, Australian
Government Publishing Service, Canberra
Office of Urban Management & Queensland University of Technology (2006), Strong
Communities Handbook
Office of Urban Management (2005), South East Queensland Regional Plan 2005–
2026
Office of Urban Management (2006), South East Queensland Infrastructure Plan and
Program 2006–2026
Office of Urban Management (2006), South East Queensland Regional Plan
Implementation Guideline No.4—Structure Plans (available online at:
http://www.oum.qld.gov.au/docs/pdf/Draft_Guidelines_Structure_Plans.pdf)
Site accessed: 29/09/2006
Queensland Government, Integrated Planning Act 1997
SGS Economics and Planning Pty Ltd (2006), Structure Plans and State Infrastructure
Agreements—Assisting Sustainable Community Development, Paper presented at the
Queensland Environmental Law Association ‘Making it Better’ Conference
SGS Economics and Planning Pty Ltd (2006), Metropolitan Planning—An
Assessment of the SEQ Regional Plan, Presentation at City Futures/SGS
Conference, Sydney 2006
SGS Economics and Planning Pty Ltd (2004–2006), Community Infrastructure Plans
(various) Mirani Shire, Redland Shire, Springfield Land Corporation, Northshore,
Beaudesert Shire
75
Implementation Guideline No. 5—Social Infrastructure Planning
SGS Economics and Planning Pty Ltd & Andrea Young Planning Consultants (2005),
Brisbane City Council Open Space and Community Needs Assessment, Input into
the CBD masterplan
SGS Economics and Planning Pty Ltd, Briggs, Elliott, Young (2005), Planning for
Social Infrastructure, Special SGS Urbecon Edition
South Australian Urban Land Trust (1994), Human Services Planning Kit, Second
Edition, Department of Housing and Urban Development
SEQ 2021 (2003), Issues and Options for Social Justice and Human Services
University of Queensland Boilerhouse (2005), Establishing Standards for Social
Infrastructure, unpublished
Untitled/undated (standards for community facilities provisions), Internal Paper,
Brisbane City Council
Young A (2001), A Guideline for Integrating Community Wellbeing in Planning
Schemes, Local Government Association of Queensland.
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Implementation Guideline No. 5—Social Infrastructure Planning
List of Acronyms
ABS
CCD
CCH
CCP
CHC
CPTED
DCS
DES
DETA
DLGPSR
DoC
DRO
ERP
GFA
HACC
Australian Bureau of Statistics
Census Collection District
Community Care Hub
Community Care Precinct
Community Health Centre
Crime Prevention Through Environmental Design
Department of Corrective Services
Department of Emergency Services
Department of Education, Training and the Arts
Department of Local Government, Planning, Sport and Recreation
Department of Communities
Desired Regional Outcome
Estimated Resident Population
Gross floor area
Home and Community Care
ICS
ICT
IMP
IPA
JAG
LAP
LGA
LGA 1993
LGMS
LIA
OESR
OUM
PAF
PPD
PFTI
PIA
PIFU
Infrastructure Charges Schedules
Information and communication technology
Impact mitigation payment
Integrated Planning Act 1997
(Department of) Justice and the Attorney General
Local Area Plan
Local Government Area
Local Government Act 1993
Local Growth Management Strategy
Local Infrastructure Agreement
Office of Economic and Statistical Research
Office Of Urban Management
Project Assurance Framework
Persons per dwelling
Plans for trunk infrastructure
Priority Infrastructure Area
Planning Information and Forecasting Unit
PIP
PPP
PS
QH
QPS
RC
ROC
SEIFA
Priority Infrastructure Plan
Private–Public Partnerships
Planning scheme
Queensland Health
Queensland Police Service
Regulated Charges
Regional Organisation of Councils
Socio-Economic Indexes for Areas
SEQ
SEQIPP
SEQ
Regional
Plan
SIA
SLA
SP
South East Queensland
South East Queensland Infrastructure Plan And Program 2006–2026
South East Queensland Regional Plan 2005–2026
State Infrastructure Agreement
Statistical Local Area
Structure Plan
77
Implementation Guideline No. 5—Social Infrastructure Planning
Glossary
Term
Definition
Affordable housing
Housing that is appropriate to the needs of low-income
households in terms of design, location and access to facilities
and services; and where rent paid by households in the lowest
40 per cent of income units does not exceed 30 per cent of
gross household income after any applicable Commonwealth
rent assistance if deducted. It includes detached housing, as
well as boarding and emergency housing and other specialist
forms of housing.
Areas of land previously used for industrial or other purposes
available to be redeveloped for alternative purposes.
The joint location of service providers within a facility, usually
without integration of services, but involving sharing premises
and possibly some administrative or other services.
A multi-purpose facility comprising a range of rooms or halls of
different sizes generally able to be hired or used by the public
for a wide range of purposes, including meetings, functions,
classes, dance, active recreation and sometimes performances.
It often includes some office space and a commercial kitchen. A
centre can serve either a local area (usually 600–800 m2 gross
floor area) or a district (over 1,000m2 GFA).
A small room (usually less than 150m2 GFA) generally able to
be hired or used by the public for meetings or functions.
A process whereby monies collected from one group is utilised
to fund infrastructure or a service that meets the needs of a
wider or different group.
The State Government department that is responsible for
planning and local government, sport and recreation in
Queensland.
Brownfield
Co-location of facilities
and services
Community centre
Community meeting
room
Cross-subsidies
Department of Local
Government, Planning,
Sport and Recreation
Development
infrastructure
Designation of land for
community purposes
Greenfield
Health precincts
Hub
Impact mitigation
payments
Infill development
Infrastructure charges
schedules
78
Defined in the Integrated Planning Act (IPA) under Schedule 10.
Relates to land and works to the land for water, sewerage,
roads, community infrastructure and public parks. Also includes
limited embellishments for public parks.
A process allowed under IPA to reserve the intent of land for
community purposes.
Areas of undeveloped land in the Urban Footprint suitable for
urban development and not yet serviced by development
infrastructure (water, sewerage, roads, etc).
Precincts where government and private services such as health
clinics and general practitioners are encouraged to locate in
close proximity, together with other service providers such as
community services.
A collection of facilities clustered together on the same or
adjoining sites. There may or may not be interaction between
these facilities. Together, they create a focal point for
community activity.
Payments that can be included as a condition of development to
offset unanticipated requirements/shortfalls for contributions
collected for funding infrastructure.
New development that occurs within established urban areas
that are serviced with development infrastructure. The site or
area is either vacant or has previously been used for another
urban purpose. The scale of development can range from one
additional residential lot to a major mixed-use redevelopment.
A process allowed under the Integrated Planning Act to assist in
funding the establishment cost of development infrastructure.
Implementation Guideline No. 5—Social Infrastructure Planning
Term
Definition
Integrated Planning Act
1997
Integrated service
centres (or nodes)
The principal legislation that governs planning in Queensland.
Local Area Plans
Local Government Act
1993
Local Government Area
Local government
authority
Local Growth
Management Strategy
Local infrastructure
agreements
Lower income
households
Master planned
communities
Neighbourhood house
Neighbourhood centre
Non-trunk infrastructure
Office Of Urban
Management
Peri-urban
The joint location of service providers within a facility (as per colocation) but with integration of services to provide a coordinated, one-stop-shop approach to case management and
service delivery.
A plan that is included in a local government’s planning scheme
that outlines a detailed master plan regarding the intentions for
the site.
The legislation pertaining to local government functions in
Queensland.
Local Government Area is a term used in Australia (and
especially by the Australian Bureau of Statistics) to refer to
areas controlled by each individual local government. The
generic names of local governments vary from state to state,
and included Shire, City and Municipality.
The responsible authority for activities undertaken in a Local
Government Area.
A strategy prepared by each local government in SEQ, in
consultation with local communities, to demonstrate how SEQ
Regional Plan policies will be implemented at the local level.
LGMSs are expected to show how local government authorities
will achieve the targets and other urban development policies
set out in the SEQ Regional Plan.
Local infrastructure agreements (LIAs) are voluntary
agreements relating to master planned areas in single
ownership. An LIA can nominate a range of infrastructure,
including local and State-provided works.
Usually defined as the bottom 40 percentile of households in the
income distribution.
Communities that have an over-arching strategic plan that
describes and maps the overall development concept for the
area or precinct, including present and future land use, detailed
urban design and landscaping, built form, infrastructure and
service provision.
A small, multi-purpose facility—sometimes a house or converted
residential sales centre, comprising several rooms (usually only
200–300m2 gross floor area)—which serves as a place for a
neighbourhood to meet and groups (e.g. playgroups and
residents’ associations) to form.
A multi-service centre, usually part-funded by Department of
Communities, with additional funding from other sources for
service activities. Neighbourhood centres generally provide
office space for a range of service providers and may make
space available for community groups to meet.
Defined in the Integrated Planning Act, non-trunk infrastructure
generally refers to infrastructure that is required for individual
properties, i.e. not shared infrastructure.
The State government agency that has been established to
prepare and implement key regional planning strategies in SEQ
to manage the region’s growth, plan the infrastructure to support
it, and ensure that the Queensland way of life is preserved for
future generations.
The transitional area between rural and urban areas in which
activities traditionally classified as urban (e.g. industry) or rural
(e.g. agriculture) exist, and which may contain residential areas
or uses.
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Implementation Guideline No. 5—Social Infrastructure Planning
Term
Definition
Planning scheme
A planning scheme is a statutory instrument that sets out the
provisions for land use, development, and protection. The
function of a planning scheme is to facilitate fair, orderly,
economic and sustainable use of land by providing for the
individual needs of an area.
Plans that identify the trunk-level infrastructure required to
service an existing urban area and areas that can service 10–15
years of growth.
Refers to the first point of contact with the health system, such
as a general practitioner, pharmacist, nurse, dentist or allied
health service. The care is provided locally.
Existing serviced land and land that can efficiently service 10–15
years of expected population growth within a Local Government
Area.
Plans that indicate areas where development is preferred and
what development infrastructure is required, based on a
combination of local and State government policies,
infrastructure efficiencies and market demands.
An agreement between private and public entities to provide
infrastructure or a service that has historically been, or is
currently being, provided primarily by the public sector
A centre or proposed centre identified in the South East
Queensland Regional Activity Centres network. These centres
support a concentration of activity, including higher density
living, business, employment, research, education and services.
Pre-determined infrastructure charges set by the Department of
Local Government, Planning, Sport and Recreation.
Refers to services that are the second point of contact—referrals
to specialist services or to the local hospital (usually within a
one-hour drive).
The divide between high socio-economic status groups and low
socio-economic groups.
South East Queensland (SEQ) is the region that contains most
of Queensland’s population. SEQ consists of the following Local
Government Areas: Beaudesert, Boonah, Brisbane, Caboolture,
Caloundra, Esk, Gatton, Gold Coast, Ipswich, Kilcoy, Laidley,
Logan, Maroochy, Noosa, Pine Rivers, Redcliffe, Redland, and
Toowoomba.
The SEQIPP is an integral component in delivering the
objectives of the SEQ Regional Plan. The SEQIPP identifies
committed and proposed transport, water, energy, social and
community infrastructure of major regional significance.
A regional plan developed in accordance with Section 2.5A of
the Integrated Planning Act that provides a framework for a coordinated and sustainable approach to planning, development
and infrastructure provision in SEQ, and recognises the
importance of developing sustainable and inclusive
communities.
Dedicated facilities serving a single or multiple community
purpose.
The migration of people seeking a lifestyle change in coastal
(sea) and hinterland (tree) areas outside capital cities.
A binding agreement between the State government and/ or
land owners, developers and local government regarding the
provision of infrastructure. It enables infrastructure to be
supplied when it is required by the community.
Plans for trunk
Infrastructure
Primary health care
Priority Infrastructure
Area
Priority Infrastructure
Plans
Private–Public
Partnerships
Regional activity centre
Regulated Charges
Secondary health care
Social polarisation
South East Queensland
South East Queensland
Infrastructure Plan and
Program 2006–2026
South East Queensland
Regional Plan 2005–
2026
Stand-alone facilities
Sea change/tree
change phenomenon
State Infrastructure
Agreement
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Implementation Guideline No. 5—Social Infrastructure Planning
Term
Definition
Structure Plan
An integrated land use plan that sets out the overall intent for
development, determines infrastructure demands, nominates
key sites for critical infrastructure, and shows how the
infrastructure will be provided and/or funded for major new
urban areas. All major new greenfield development areas and
all major redevelopment areas are required to have an approved
structure plan prior to development.
Refers mostly to super-specialist services that support a region.
It includes referrals to hospitals with specialist units (e.g. cardiac
units).
Tertiary health care
Transit oriented
development
Urban Footprint
Mixed-use residential and commercial areas, designed to
maximise the efficient use of land through high levels of access
to public transport. ‘Transit oriented development’ (TOD) usually
applies to activity centres, whilst ‘transit oriented communities’
generally applies to the application of TOD principles in smaller
centres.
Identifies land to provide for the region’s urban development
needs to 2026. It includes existing urban areas and greenfield
areas potentially suitable for future urban development.
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Implementation Guideline No. 5—Social Infrastructure Planning
Appendix 1: Planning Considerations for Specific Facilities
This appendix outlines planning considerations for 26 types of facilities, including
planning responsibilities, comparative rates of provision, indicative site area
requirements, design criteria and target groups, and other specific considerations.
These detailed matters should
be considered as one part of the
planning process for facilities, as
described earlier in Section 3
(Social Infrastructure Planning
Framework).
Profiling
P
a
Analysis/Assessment
r
General location and design
criteria applicable to most
facilities are discussed in
Sections 2.2 and 7.2 of these
Guidelines.
t
p
settlement patterns and catchment
Comparative rates of provision
are provided in the tables as an
indicator for assessing
comparative needs, and are
cited as a ratio of one facility per
head of population (except
where otherwise noted)12. They
are only one factor that should
be considered in assessing the
need for a new facility, as
outlined in the planning process
diagram on the right.
a
areas
•
Collate and analyse data from
i
profiling (community profile and
c
facility inventory) and consultation
i
t
i
•
•
Spatial analysis of provision,
Analyse against comparative rates of
provision and develop locally
o
applicable desired standards of
n
service
•
Identify gaps in existing supply and
assess future needs
•
Validate findings through
consultation.
Comparative rates of
Provision and Implementation
provision should not be
considered a minimum
standard of provision or lead to the expectation about a level of provision of
such facilities.
In some cases, agencies may use them as a starting point to indicate that a needs
assessment may be required to be undertaken for a particular facility or service.
Development of new delivery models, including the use of information and
communication technology, may change comparative rates of provision.
In cases of major State Government infrastructure, it is recommended that readers
consult relevant agencies in regard to planning intentions rather than base planning
assumptions on comparative rates of provision. Reference should also be made to
the relevant websites for the current requirements for State-provided facilities.
For most facilities, planning should begin two to three years before the facility may be
required. Longer lead times apply to some facilities, for example library services,
secondary schools and facilities involving multiple stakeholders and the satisfaction
of multiple users. Facilities are listed in alphabetical order:
12
82
Comparative rates of provision and indicative site areas are derived from Briggs et al, (2005)
Urbecon Bulletin, Special Edition, December 2005, published by SGS Economics and Planning Pty
Ltd and based on material provided by SGS, Briggs and Mortar Pty Ltd, Elliott Whiteing Pty Ltd,
and Andrea Young Planning Services; advice from the relevant agencies; and national experience.
The comparative rates of provision and indicative site areas have been ground-truthed as far as
practical.
Implementation Guideline No. 5—Social Infrastructure Planning
Aged Care Service/Respite Centre
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of
facility
Agency with
primary funding
responsibility
Planning and
decision-making
process
Comparative
rates of
provision
Indicative
minimum site
requirements
Design criteria
13
A facility which provides an operational base for services targeted at
older and/or younger people. It may include domiciliary care and
Meals On Wheels, day respite care for frail aged people and younger
people with a disability who may be at risk of premature or
inappropriate long-term residential care, and other services. Facilities
can cater to individual service providers or a collection of service
providers. Services often include transport to and from the centres,
meals, and some allied health services. These centres can provide a
range of interactive activities for clients and/or a base for outreach
services.
Queensland Health, with funding from the local council, the
Commonwealth Department of Health and Ageing, Department of
Communities, and Disability Services Queensland.
Facility planning can be initiated at a range of levels by community
agencies working with local councils. Land and infrastructure may
also be funded through the local council, community organisations
that sublet to service providers, or a consortium of service providers.
Funding is also provided through a number of Commonwealth
programs, including Respite for Carers and the joint
Commonwealth/State-funded Home and Community Care (HACC)
program (the latter meets some infrastructure costs but mainly funds
service delivery).
Local
1:7,000–10,000 (note: smaller facilities are
more likely to occur in rural and regional
areas)
District/LGA-wide or
1:20,000–100,000
regional
Local
A floor area of 500 m2,(min.), depending on
the services provided, e.g. a commercial
kitchen is required for a Meals on Wheels
service, whilst equipment storage and
loading facilities are important for personal
care services. A site area of approximately
1,500– 2,000 m2.
District / LGA-wide
A gross floor area (GFA) of approximately
or regional
1,000– 1,500 m2 13. A site area of
approximately 3,000– 5,000 m2.
No design criteria are specified in the HACC guidelines, however
providers must comply with local council and other legislated
planning requirements. Access for people with a disability is a
primary consideration. Adequate on-site parking and servicing
arrangements are essential.
Flexibility is another consideration due to changing target groups
over time, particularly as new aged cohorts begin to require services.
Site areas provided assume the building has one storey. Site areas can be reduced where multistorey construction is planned.
83
Implementation Guideline No. 5—Social Infrastructure Planning
Ambulance
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Ambulance station
Department of Emergency Services
Planning is informed by an ambulance services capital
infrastructure strategic plan, with input from the State and local
government. Decisions are made based on the current and
projected population; planned future development and Urban
Footprint; a hazard assessment and associated risk
assessment; the proposed road network; and an incident profile
for the area. The primary benchmark used by the Queensland
Ambulance Service (QAS) is response time, which depends on
service demand, service utilisation and capacity, distance and
vehicle capacity.
Over 25,000 people—depending on the response time profile,
unit hour utilisation, case load per day, and proximity to existing
ambulance stations and other health services.
Indicative minimum
site requirements
Site area: 3,000 m2
Design criteria
The station type (i.e. rural, day shift, day and afternoon shift or
24-hour) will determine the building style, however a number of
flexible standard designs exist which accommodate current
needs. The facility must be designed and located for safe,
efficient and direct access to streets, including major traffic
routes, and include an alternative exit route. Sites must support
the achievement of required rapid response times to an
emergency case.
The location of ambulance stations is determined by a number
of factors, including the type of community (urban, rural,
isolated), the number incidents per day (demand), age
demographic of the community, accessibility to (and egress
from) road and air networks, response time profiling,
ambulance utilisation rates and risk profiling of the community.
Demand for services can also be impacted by the presence of
such things as health facilities, aged persons retirement
facilities, and high-risk industries.
Co-location of ambulance, fire and Emergency Management
Queensland is considered where land and other efficiencies
can be achieved.
The QAS supports active community input (through Local
Ambulance Committees) into the design and siting of
ambulance stations.
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing facilities
for expansion/integration, or delivery through outreach services.
Other considerations
Funding/delivery
84
Implementation Guideline No. 5—Social Infrastructure Planning
Art Gallery
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Target groups
Design criteria
Other considerations
Funding/delivery
Art Galleries provide exhibition spaces, and may offer
educational programs, as well as meeting and workshop space
for artists. Galleries are often co-located with libraries, civic
buildings and museums.
The local council, Arts Queensland (part of the Department of
Education, Training and the Arts), and the Commonwealth
Government.
The Regional Galleries Association of Queensland is the peak
body for public galleries in Queensland. Its subsidiary,
Museum and Gallery Services Queensland, provides advice to
local governments and others about facility planning,
development and management.
Arts Queensland develops and implements cultural policy and
administers cultural funding and capital works programs that
support arts and cultural development.
1:30,000–150,000
A floor of area 400–1,500 m2, or larger, with spaces of varying
size, including exhibition space, smaller meeting rooms,
educational spaces and storage.
The minimum site area depends on a number of factors and
may range from 1,000–5,000 m2.
General population
Facilities may range from small volunteer-run exhibition spaces
to large, professionally managed public galleries.
Requirements are likely to include a large open gallery space,
with flexible partitioning and room configuration, lift access if
on more than one level, an office/administration area, air
conditioning (to protect collections), visual arts workshop
space (desirable), public art, clear signage and adequate
parking. Some facilities have a café/restaurant/kiosk.
Adequate storage for in-house and travelling collections and
large vehicle access are essential.
Larger galleries should be located in a principal activity centre
in a landmark building, accessible by private car or regular
weekday and weekend (including evening) public transport
services. Smaller galleries may be located in smaller activity
centres.
New models of provision are being explored through the
development of cultural hubs in council areas (including arts,
museum and performance facilities).
The funding of new facilities is subject to priorities established
by State and local governments and an assessment of the
capacity of existing facilities for expansion/integration, or
delivery through outreach services.
85
Implementation Guideline No. 5—Social Infrastructure Planning
Cemetery/Crematorium
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Target groups
Design criteria
Other considerations
Funding/delivery
86
A cemetery is a place for the burial of human remains, and
serves cultural and religious purposes both at the time of
passing and for families’ future needs.
A crematorium is a facility for the cremation of human
remains, often contained within a cemetery (usually a lawn
cemetery), and usually containing one or more chapels for the
holding of services. A columbarium is a facility (usually a wall)
for the holding of cremated remains.
Local council/private
Local governments have traditionally assumed responsibility
for cemeteries and crematorium facilities, however a regional
approach to planning and allocation of land for cemeteries is
currently being developed. This is leading to larger facilities
than those built historically, when each town had its own
facility.
1:50,000–200,000
1500 m2 /1,000 people. Cemeteries are by nature difficult to
locate due to their size and the cultural norms attached to
them. In 2005, the Council of Mayors (SEQ) referred the
issue of the provision of adequate land for cemeteries within
SEQ to the Regional Coordination Committee. A planning
study to identify existing provision and projected requirements
is being conducted.
General population
See above
Long-term planning is required to ensure land is reserved for
this purpose within acceptable distance of urban areas.
Compatibility with surrounding land uses is important.
See above
Implementation Guideline No. 5—Social Infrastructure Planning
Child Care Centres
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
Facilities that provide long day care, limited hours/occasional
care and overnight care for children up to school age. Centres
may also offer care for school-aged children (before and after
school).
The majority (around 83 per cent) of child care centres in
Queensland are run by the private sector. The community
sector is still a strong provider in regional centres. Some
Councils may choose to fund centres, possibly with a capital
subsidy from the Commonwealth or State Government.
For a new community or council childcare centre to be
developed, priorities must be determined by a joint StateCommonwealth planning team. Services will be accredited
under the Quality Improvement and Accreditation System,
which is administered by the National Child Care Accreditation
Council. Child care centres must meet the licensing
requirements of the Child Care Act 2002 and the Child Care
Regulation 2003, administered by the Department of
Communities.
1:4,000–8,000. Specialty services such as child care for
children with disability or from diverse cultural backgrounds
should be planned at district/LGA-wide level, with outreach to
local centres.
For a 75-place childcare centre, space requirements include
3.25 m2 of indoor play space and 7 m2 of outdoor play space
for each child. Additional requirements include areas for food
and bottle preparation, a laundry, cleaners and administration
facilities.
Child care centres must comply with the Building Act 1975
requirements, including the Queensland Development Code,
Part 22: Child Care Centres.
New-born children up to school age, with school-aged care
(before and after school) being provided by some centres.
Ideally, child care facilities should be located with other
community facilities and on public transport routes, and be
compatible with adjoining land uses. Journeys to work may
also be important in determining location.
The Department of Education, Training and the Arts requires
site planning to accommodate child care centres when master
planning new schools.
Whilst most new child care centres are provided by the private
sector, State and local governments are keen to ensure supply
meets demand and may be an advocate in this regard.
87
Implementation Guideline No. 5—Social Infrastructure Planning
Community Centres/Civic Centres
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of
facility
Agency with
primary funding
responsibility
Planning and
decision-making
process
Comparative
rates of
provision
Indicative
minimum site
requirements
Design criteria
Target groups
Other
considerations
Funding/delivery
88
General-community-use facilities providing meeting spaces, social,
educational and recreational activities, health and/or support
services and information. They include civic centres, community
centres, neighbourhood centres, local halls, neighbourhood houses
and meeting rooms (see also Youth Facility).
Responsibility for funding community centres is shared by local
councils, community organisations, and State and Commonwealth
agencies. The land purchase may be assisted by infrastructure
contributions. A State-funded neighbourhood centre may play a
similar role but may be directed toward providing space for Statefunded community organisations.
Local governments have the primary roles in planning and operating
community centres/halls. Developers of master planned estates may
provide the facility and fund its initial operation, possibly including a
neighbourhood house. Facilities should be planned in collaboration
with community groups and other providers.
Neighbourhood
1:2,000–3,000 (Council/private)
(community meeting room/
neighbourhood house)
Local (community centre/
1:6,000–10,000
multi-purpose hall)
(Council/private/community)
District centre (Multipurpose community centre
and/or neighbourhood
centre)
Regional/LGA-wide (civic
centre)
Neighbourhood
1:20,000–50,000 (State/council)
1:30,000–120,000 (Council)
200–300 m2 gross floor area (GFA)
500–750 m2 site area
Local
600–800 m2 GFA (Hall— 400 m2)
5,000m2 site area (Hall— 2,000 m2)
District
1,000 m2 GFA
10,000 m2 site area
Regional/LGA-wide
2,000–5,000 m2 GFA
15,000 m2 site area
Flexible, multi-purpose facilities, potentially co-located, with
consideration of child safe areas, informal areas, visibility and
security. Multi-use and co-location models should be considered.
Targeted to meet local needs, including groups with particular needs
(e.g. children, young people and seniors).
Innovative approaches/new models include co-located and multipleuse facilities. Large facilities should be located in or near activity
centres with public transport access; local centres may be colocated with schools, child care and other local facilities.
The funding of new facilities is subject to priorities established by
State and local governments. Capital funding is usually generated
through partnerships between local and State governments, and
community groups. Operational funding is usually provided by local
councils, with potential program/service funding from the State
Government.
Implementation Guideline No. 5—Social Infrastructure Planning
Community Health Precincts, Hubs, Centres and Services
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Queensland Health has a five-level framework for the delivery
of community health services. The Primary Health Care Post
(Level 1) and Rural Community and Ambulatory Care Centre
(Level 2) are more likely to occur outside SEQ. In SEQ,
community health services are mainly delivered through Level
3, 4 and 5 facilities.
Local- and district-level14 health services are provided through
Community Health Centres and dedicated local
facilities/services (e.g. child health clinics). A Metropolitan
Community Health Centre (Level 3) offers a core suite of
community health services, matched to the local population.
The service is also directed towards capacity building and
community development with local partners, who may include
non-government partners on site or in-reach; and integrated
programs with general medical practitioners and indigenous
medical services.
A Regional Community Care Hub (Level 4) offers a core suite
of community health services for the local population and may
act as a hub for specialist teams to consult. It offers a full
range of primary and ambulatory programs and outpatient
clinics, such as maternal and child health, oral health,
counselling, social work and information and referral services.
It is directed towards capacity building and community
development with local partners who may include nongovernment partners on site or in-reach, including Department
of Communities, Disability Services Queensland and
Commonwealth Aged Care.
Agency with primary
funding responsibility
Planning and
decision-making
process
At the broader regional/LGA level, an Integrated Health and
Community Care Precinct (Level 5) incorporates community
health services for the local population and a hub for specialist
teams as described for Level 4, as well as a full range of
primary and ambulatory programs and outpatient clinics. In
addition, it may offer more specialised outpatient therapy and
clinics e.g. antenatal, community rehabilitation and chronic
disease. The focus is on the integration of private services,
e.g. pharmacy, allied health, minor injuries and medical clinics,
as well as providing a base for non-government organisation
and other government services.
Queensland Health
Under the Health Action Plan 2005, Queensland Health is
developing a Statewide Health Services Plan, which will
inform future planning and include guiding principles for health
service provision. Priorities for new services are based on the
assessment of new growth areas and of other areas of need,
on health status, demography and other health issues, and the
capacity for refurbishment of existing facilities.
The SEQ Infrastructure Plan identifies Community Health
14
District in this context refers to the term as defined in these Guidelines, and not the Health
Services Districts of Queensland Health (e.g. Central Area Health District).
89
Implementation Guideline No. 5—Social Infrastructure Planning
Precinct priorities in high-growth areas to 2026. Liaison with
Queensland Health health service planners is recommended.
Contact should also be made with the relevant Area Health
Services office.
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Queensland Health does not have standard benchmarks for
planning facilities. The capacity, role and model of care for
each site is based on detailed local planning and needs
analysis, and on the capacity of existing services, both local
and regional.
Community Health Centre: A catchment population of
1:20,000–30,000 people may be appropriate.
Community Care Hub: A catchment population of 1:30,000–
100,000 people may be appropriate.
Community Care Precinct: A catchment population of
100,000–300,000 people may be appropriate.
Community Health Centre: A floor area of 2,000–4,000 m2,
and a site area of up to 1.6 ha.
Community Care Hub: A floor area of 4,000–8,000 m2, and
site area of 1.6–3.2 ha.
Community Care Precinct: A floor area of 8,000–10,000 m2,
depending on the range of services required, and an
estimated site area of 3.2–4 ha, including parking.
Site selection and facility design criteria include access to
public transport, disabled access, security, and safety and
privacy issues for some services. Multiple entrances may be
required for a Community Care Precinct. Adequate on-site
parking and drop-off facilities are essential. Facilities should
be designed to maximise flexibility, enabling the incorporation
of different services and changes in styles of service delivery
over time as the community’s needs change.
People of all ages and socio-economic circumstances.
Co-location with other community facilities may desirable. The
site must allow for flexibility to support co-location and
potential future expansion, and be located so that it is visible
and easy to find. Emergency vehicle access may be required,
depending on the specialist services offered.
Community health centres, community care hubs and
community care hubs are generally provided in metropolitan
areas, and ideally should be located in an activity centre, or
close to a school or community centre, along transport routes,
with high visibility, adequate parking and multiple entrances.
Co-location with other major community services can be an
advantage.
Smaller health centres may be established as the first stage in
the longer-term development of a Community Care Precinct or
hospital.
Funding/delivery
90
Funding is subject to priorities established by State
Government and an assessment of the capacity of existing
facilities for expansion/integration, or delivery through
outreach services. Reference should also be made to the SEQ
Infrastructure Plan.
Implementation Guideline No. 5—Social Infrastructure Planning
Correctional Services
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
Correctional services facilities include correctional services
offices (area and district) for the administration and supervision
of court orders such as parole and probation orders; and
correctional facilities (prisons) which accommodate people
sentenced to custodial orders.
Queensland Corrective Services (QCS)
QCS monitors population projections and numbers of people in
the correctional services system, and, on this basis, determines
the need for expansion of existing prison facilities or rental of
new community-based correctional services.
District and area offices are positioned in central locations, and
reporting offices are located where lack of public transport and
other facilities make them necessary.
QCS’s planning has identified the need for expansion of two
existing correctional centres at Wacol, and a new correctional
precinct to cater for growth over the next 10 years.
An area with a saturation of young adults in a lower socioeconomic demographic is of interest to the probation and
parole services. The imprisonment rate in Queensland is
currently 177 persons per 100,000 (general adult population).
The average prison size is expected to reach 2,000 beds by
2015.
Site areas for correctional centres vary according to the nature
of the facility. A new correctional centre site is being
investigated to support foreseeable facility needs in SEQ, with
a minimum area of 600 ha.
Correctional services offices are usually rented, preferably in a
government office precinct. The size of offices depends on the
number of staff, with between 200 m2 and 350 m2 required for
an area office.
Correctional offices and prisons are designed according to
departmental guidelines, which incorporate service and security
provisions.
People subject to correctional or custodial orders.
Program delivery is being centralised in program hubs in larger
urban areas. Correctional services are sited to avoid proximity
to schools and other community infrastructure that caters for
children. Close proximity to public transport is essential for all
facilities.
The site should be relatively unconstrained in terms of slope or
flooding; located close to road and public transport; well located
in relation to water supply and waste disposal infrastructure;
and reasonably separated from established township areas, or
proposed residential areas.
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing facilities
for expansion/integration of services.
91
Implementation Guideline No. 5—Social Infrastructure Planning
Courthouses
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Courthouses accommodate the delivery of court services to
support the criminal and civil justice system. The principal
service is resolution of court cases and provision of associated
services. Courthouse facilities include court registries, court
rooms, holding cells, interview rooms and facilities for victims
of crime and vulnerable witnesses. Some also include, or are
linked to, police facilities such as watchhouses.
Agency with primary
funding responsibility
Planning and
decision-making
process
Department of Justice and Attorney General (JAG)
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target groups
Other considerations
Funding/delivery
92
The primary criteria for the location of court facilities is
population projections and major growth areas. Other factors
include the location of police infrastructure, regional watch
house facilities, and community accessibility. The assessment
of need for a new facility takes into account the location of
existing court buildings with potential for expansion.
JAG policy is to centralise service provision, maximising the
use of existing facilities through their expansion/upgrading in
major growth centres.
Expansion of courthouse facilities on existing sites.
Designs of courthouse buildings are consistent with the JAG
Courthouse Standard and Design Guide.
People requiring resolution of court proceedings; alleged
offenders.
The policy of expansion rather than the creation of new
facilities reflects a desire to gain maximum possible benefit
from the large capital investment required. Land use planning
decisions that may impinge on courthouses’ capacity to
expand should be referred to JAG for discussion.
Co-location with police facilities may be appropriate in facility
redevelopment.
The funding of upgraded facilities is subject to State
Government priorities.
Implementation Guideline No. 5—Social Infrastructure Planning
Exhibition/Convention Centre
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Other considerations
Funding/delivery
A large, cavernous public building with enough open space to
host public and private business and social events. A
convention centre includes an exhibition hall, or conference
centre. Events held in convention centres can include
corporate conferences, industry trade shows, formal dances,
entertainment spectacles and concerts.
Local council /State and Commonwealth governments /private
sector
Councils play an integral role in determining the need for, and
supporting the development of, any form of civic infrastructure
of this size. Land contributions and support from council would
usually fall under its Priority Infrastructure Plan.
1:50,000–200,000
The minimum site area requirements depend on the number of
floors, nearby parking availability, and the capacity required for
performances/conferences.
The following criteria should be considered:
•
flexible, multi-purpose building, usually on one level
•
large, clear-span exhibition space permitting room
configurations of varying size, including a number of
smaller meeting rooms available for hire to general
community groups, e.g. older people.
•
office/administration area
•
possible caféteria/restaurant
•
possible bar and lounge
•
inclusion of significant works of public art
•
adequate storage for major exhibitions and
conferences
•
access for people with disability to all parts of the
building
•
tables, seating, a variety of meeting room facilities,
small conference equipment, exhibition equipment (for
hire)
•
clear signage from town centre
•
amenities adequate for large functions and events
•
adequate parking to cater for the size and multitude of
uses of the facility or access to a major car parking
facility in the town centre.
Ideally located in a principal activity centre, preferably in a
landmark building.
Easily accessible by car or by regular weekday and weekend
public transport (including evening services).
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing
facilities for expansion.
93
Implementation Guideline No. 5—Social Infrastructure Planning
Fire and Rescue
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Fire and rescue station
Department of Emergency Services
Comparative rates of
provision
Over 25,000 people—depending on the response time profile,
incident history, proximity to existing fire and rescue stations,
and population forecasts.
Indicative minimum
site requirements
Site area: 3,000–4,000 m2 (auxiliary station)
3,000–6,000 m2 (permanent station)
10,000–20,000 m2 (permanent station with specialist facilities
attached, e.g. workshops and communication centre).
The station type (i.e. auxiliary, day shift or 24-hour) will
determine the building style, however a number of standard
designs exist which accommodate current needs.
The location of fire and rescue stations is determined by a
number of factors, including the type of community (urban,
rural, isolated), the number incidents per day (demand),
demographic of the community, accessibility to (and egress
from) road networks, response time profiling and risk profiling
of the community.
Demand for services can also be impacted by the occurrence
of such things as high risk industry.
Co-location of Ambulance, Fire and Emergency Management
Queensland is considered where land and other efficiencies
can be achieved, however criteria differ and co-location should
not be assumed.
Facilities must be designed and located for safe, efficient and
direct access to streets, including major traffic routes, and
include an alternative exit route.
Sites must support the achievement of required rapid response
times to an emergency case.
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing
facilities for expansion/integration, or delivery through outreach
services.
Design criteria
Other considerations
Funding/delivery
94
Planning is informed by a Queensland Fire and Rescue
Services capital infrastructure strategic plan, with input from
State and local governments.
Decisions are made based on the current and projected
population; planned future development and the Urban
Footprint; a hazard assessment and associated risk
assessment; the proposed road network; fire levy forecasting;
and an incident profile of the area.
Response times are a primary benchmark which can be
defined as a function of area covered, traffic infrastructure
capacity, equipment capacity and staff to respond.
Implementation Guideline No. 5—Social Infrastructure Planning
Hospital—Public
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
A hospital is a health care institution that provides day patient,
emergency and inpatient clinical care and treatment for people
who are unwell or injured. A range of allied, medical, surgical,
preventative, diagnostic and treatment services are generally
provided in association with day patient and overnight hospital
stays.
Queensland Health
In accordance with the Queensland Government Health Action
Plan 2005, Queensland Health is developing a Statewide
Health Services Plan, which will include guiding principles for
provision. The Plan will inform future revisions of the SEQ
Infrastructure Plan, as well as Area Health Services Plans.
Queensland Health does not use published benchmarks for
planning hospital facilities. The capacity, role and model of
care for each site is based on detailed local planning and
needs analysis, but is likely to serve a catchment of over
100,000 people. A Clinical Services Capability Framework is
used to describe health services and define the underlying
standards and requirements to ensure patient safety and
facilitate clinical risk management across facilities.
10–15 ha, depending on whether the hospital provides
secondary- or tertiary-level services (as defined in the
glossary).
The Australasian Health Facility Guidelines (University of New
South Wales, 2006) will be used for future hospital
developments. The guidelines are based on best practice and
articulate minimum standards for components of a health facility.
Design must include disabled access, security, safety and
privacy issues for some services. Adequate on-site parking is
essential. Health facilities must be designed in such a way that
they remain functional in an emergency situation or natural
disaster.
People of all ages and socio-economic circumstances.
There is an estimated lead time of 4-5 years for the provision of
hospital facilities providing secondary health care services, and
for major metropolitan hospitals providing tertiary health care the
lead time is up to 10 years. In new communities, a small
community health service presence would be established
initially, with services expanded over time. A site that facilitates
flexible design and ongoing expansion is required.
It is preferred that hospitals are located along major transport
routes with access to public transport. Private hospitals are
provided independently, but influence the supply of services.
Any assessment of private hospitals should take into account
the provision of public and private services.
The funding of new facilities is subject to State Government
priorities—reference should be made to the SEQ Infrastructure
Plan. Forward capital works programs are dependent on budget
processes.
95
Implementation Guideline No. 5—Social Infrastructure Planning
Kindergartens
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
96
Kindergartens focus on early learning for children aged 3.5–4.5
years, and usually operate 2.5–3 day per week programs during
school hours.
The Department of Education, Training and the Arts provides
recurrent operational funding to community kindergartens and
preschools affiliated with or approved by the Crèche and
Kindergarten Association of Queensland (C&K).
Kindergartens are planned by communities in cooperation with
the C&K and other organisations such as church groups.
Services are required to meet the licensing requirements of the
Child Care Act 2002 and the Child Care Regulation 2003, which
are administered by the Department of Communities.
1:7,500-10,000. This is likely to change with the introduction of
the preparatory year to Queensland schools.
Approximately 1500 m2–2000 m2 of land is required.
Kindergartens must comply with the Building Act 1975
requirements and the Queensland Development Code, Part 22:
Child Care Centres.
Children aged 3.5–4.5 years
There has been a recent trend towards locating a range of
children’s services in integrated child and family services
centres. Preschools, which traditionally serviced the 4–5 years
age group, are no longer being developed due to the introduction
of the preparatory year to Queensland schools.
Kindergartens need to comply with all design criteria and
licensing requirements in order to be eligible for State funding.
Implementation Guideline No. 5—Social Infrastructure Planning
Libraries
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding
responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Other considerations
Funding/delivery
A central library operates at a Local Government Area or
regional level, offering high-level functions and resources. It
shares all collections with branches, as required.
A branch library caters for a more localised area, offers access
to both text and online resources for learning, and can also
incorporate meeting spaces and areas for study.
The local council, sometimes in partnership with universities,
schools, and, potentially, developers. Capital subsidies are
available from the Queensland Government (provided through
the Department of Local Government, Planning, Sport and
Recreation, and managed by the Public Libraries Division).
Planning is led by local council, with assistance from the Public
Libraries Division
Branch library:
1:15,000–30,000
Central library:
1:30,000-150,000
Central library: Between 37 m2 and 49 m2 per 1,000 people,
with higher floor-space-to-people ratios for smaller populations.
Additional to this are areas for staff training, and meeting
rooms. The areas required for additional sites include 50m2 per
mobile library (excluding housing and parking for the vehicle),
20 m2 for the first branch and 10 m2 per branch thereafter. For
a branch library, the minimum amount of public floor space
provided should be 150 m2, beyond which the requirement is
37–43 m2 per 1,000 people. The State Library of Queensland’s
building standards provide detailed floor space requirements,
and must be observed to attract capital subsidies for facilities.
Detailed design criteria should be developed in consultation
with local communities, user groups, co-location or multi-use
partners, and the Public Libraries Division. The criteria will
depend on the mix of uses, size, scale and type of library being
provided. The shape of the site should allow for maximum
functional use and for future expansion. Adequate access for
service and delivery vehicles should be provided. If mobile
libraries are to be housed, access must be ensured and
adequate turning space allowed for vehicles.
A central library facility should be located in a convenient
position to maximise accessibility, ideally within an activity
centre.
Provision of library services is dependent on the location of
activity centres, transport routes, proximity of other facilities and
the spread of the population.
The provision of specialist services should reflect local demand.
Mobile libraries can also be provided to extend the reach of
library services to poorly serviced urban areas and rural
centres, as well as to provide home access for people with
restricted mobility.
The funding of new facilities is subject to local and State
government priorities and an assessment of the capacity of
existing facilities for expansion/integration, or delivery through
outreach services.
97
Implementation Guideline No. 5—Social Infrastructure Planning
Museum
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target groups
Other considerations
Funding/delivery
98
A building, place or institution devoted to the acquisition,
conservation, study, exhibition and educational interpretation
of objects with scientific, historical or artistic value.
Local council/State and Commonwealth
governments/community
Museum and Gallery Services Queensland provides advice to
local governments and other agencies about gallery planning,
development, management, policies, programs, benchmarking
and research.
Any new facility will need to be based on community demand
and future need, with support across government (in terms of
funding, provision of buildings and/or land, or general
legislative support).
Guidance should be sought from Arts Queensland regarding
the provision of museums, as well as the capacity, suitability
and compliance requirements for arts and cultural facilities.
1:30,000–120,000
Museums most often develop from existing, older buildings
which are part of the community fabric and heritage. As such,
site requirements depend on the type and scope of
exhibitions, installations and educational programs to be
offered.
Preferably flexible, open spaces capable of being partitioned
or subdivided into different configurations. The premises must
be secure, with a high level of protection for artifacts.
General population
A museum should be located with easy access to resident and
tourist populations, ideally within an activity centre, and well
supported with parking and public transport. Proximity to local
schools is an advantage.
New models include interactive facilities in association with
community centres, libraries and galleries.
The development of cultural hubs in local council areas
(including arts, museum and performance facilities) is also
being explored by Arts Queensland.
The funding of new facilities is subject to local and State
government priorities and an assessment of the capacity of
existing facilities for expansion/integration.
Implementation Guideline No. 5—Social Infrastructure Planning
Out-of-School-Hours Care
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
Out-of-school-hours care facilities provide before- and afterschool care, pupil-free days and vacation care services for
primary-school-age children. These facilities are usually
provided through schools and community centres, and offer
supervised, age-appropriate activities for children who may
attend on a regular or casual basis.
Operational funds are provided by the State and the
Commonwealth, but provision is heavily supported by Parents
and Citizen’s Associations (P&C), as well as the Department of
Education, Training and the Arts through the use of primary
school facilities.
Services are often jointly planned at the local level by parent
and community groups and primary schools. Services located
on school premises may be managed by the school P&C.
Some services are required to meet the licensing requirements
of the Child Care Act 2002 and the Child Care Regulation
2003, administered by the Department of Communities, and to
be accredited by the National Childcare Accreditation Council
(NCAC).
The provision of out-of-school-hours care should be considered
for all primary schools. Licensed capacity may be set at any
appropriate number in relation to the catchment served, taking
into account the minimum space requirements.
A combined play area of 15.25m2 per child—incorporating
3.25m2 of indoor play space, 7m2 of outdoor play area, and an
additional 5m2 of space either inside or outside.
School-aged care services (required to be licensed under the
Child Care Act 2002) must comply with the Building Act 1975
requirements and the Queensland Development Code, Part 22:
Child Care Centres, which outline specific requirements in
relation to areas such as:
•
toilet facilities
•
food-preparation areas.
Primary-school-aged children (5–13 years)
Safe outdoor play areas are a critical component of the
provision of this type of service.
Planning for out-of-school-hours care should be considered
during the planning of new schools.
The Commonwealth Department of Families, Community
Services and Indigenous Affairs administers a Child Care
Quality Assurance system, to which providers must adhere in
order for parents to access funding through the Child Care
Benefit. Community fundraising is also relied upon.
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Implementation Guideline No. 5—Social Infrastructure Planning
Performing Arts Spaces (Performing Arts Centres/Arts Workshops)
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and decisionmaking process
Comparative rates of
provision
Indicative minimum site
requirements
Design criteria
Target Groups
Other considerations
Funding/delivery
100
A space for arts rehearsal and performance, ranging from
small playhouses to large multi-purpose performance centres
supporting a wide range of performing arts (from plays to
operas and eisteddfods). Includes arts workshop spaces.
Local councils and the private sector provide funds for this
type of facility. Additional funding may be sought from the
State Government.
Facilities are planned on a local-needs basis and are subject
to funding priorities.
Rates of provision for performing arts facilities are currently
under development by Arts Queensland. As a guide, such
spaces are usually found in populations of approximately
30,000–50,000 people.
Guidance can be sought from Arts Queensland on
requirements for arts and cultural facilities. Minimum site
area requirements may be around 3,000m2 but will depend
on the type of facility and its capacity.
For a larger facility, general requirements may include:
flexible, multi-purpose building (with lift access if it is more
than one level)
tiered-seat theatre of varying capacity, flexible enough to
cater to smaller audiences and designed for music, drama
and dance
stage, wings, dressing rooms and a pit to accommodate a
range of performers (e.g. orchestras, choruses and actors)
office/administration area and storage for multiple users
performing arts workshop space (for
rehearsals/performances)
possible café/restaurant/kiosk
significant works of public art/sculpture
adequate parking (may be shared with other community
facilities in a community or cultural hub).
smaller facilities may vary from rehearsal spaces to boutique
theatres.
General population
New models of provision are being explored through the
development of cultural hubs in local council areas (including
arts, museum and performance facilities).
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing
facilities for expansion/integration, or delivery through
outreach services.
Implementation Guideline No. 5—Social Infrastructure Planning
Police
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and decisionmaking process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target Groups
Other considerations
Funding/delivery
Police stations serve a specific area providing emergency
services, primarily in response to situations of a criminal or
public safety nature.
Queensland Police Service
The identification of requirements for increased resource
allocation (both human and capital) is primarily the
responsibility of the individual police regions. Prioritisation of
identified needs is a function of whole of service management
committees. There is no set formula for resource
requirements in specific areas, consideration is given to
numerous environmental issues, crime trends and appropriate
policing strategies to address the identified issues and meet
community needs.
1:20,000–30,000
A site area of 4,000–5,000 m2.
Land and floor space requirements vary according to local
needs and the size of the catchment served. Smaller ‘shop
front’ facilities are planned according to the catchment
serviced and availability of suitably located rental space. For
security reasons, the site should allow dual access.
These vary for facilities offering the following services: cells; a
public counter; security areas; parking; recreation facilities;
and front and rear access.
Targeted to meet local needs.
Other issues affecting the size and nature of police facility
provision include the rate of development and the rate of crime
and public demands.
Ideally, police facilities should be located near large shops and
community centres, as well as near major roads and public
transport. Proximity to courts should also be considered, if
applicable.
The funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing
facilities for expansion/integration, or delivery through
outreach services.
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Implementation Guideline No. 5—Social Infrastructure Planning
Postal Services
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and decisionmaking process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target Group
Other considerations
Funding/delivery
102
Retail outlets (classified into corporate outlets, franchised
outlets, and community postal agencies) that provide postal
and courier products and services under the auspices of a
corporate entity. The majority of outlets are corporate outlets
(larger size), with fewer franchised outlets (smaller in size).
Community postal agencies occur only in rural areas, usually
in conjunction with a grocery store or other community service
provider. Post boxes are provided throughout urban areas
and in rural centres.
Business delivery centres support mail distribution and
logistics operations.
Australia Post
The policy framework is set nationally by Australia Post.
Area managers monitor growth and demand, and determine
service responses. The need for a new postal centre is based
on an analysis of the volume of mail in a particular area
compared to the resident population and the number
of/distance to existing outlets in the area.
The first post box is usually established when the population
reaches about 300 people.
No comparative rates of provision apply to retail outlets.
Post boxes are provided at locations where an acceptable
level of use has been recorded or is anticipated, including
shopping centres, public transport points, hospitals and
retirement villages.
Business delivery centres: 2,800–4,000 m2 (including a car
park)
Retail outlets: 150–300 m2 (floor area only)
On-site parking is necessary for business delivery centres.
Sufficient floor space is necessary to conduct postal business
in licensed and post-point outlets. Reasonable access to
outlets is required for vehicles.
General population
Retail outlets are generally provided in activity centres with 12
or more retail outlets. Licensed post office centres (corporate
outlets) are provided in activity centres with 30 or more retail
outlets, as well as business/corporate precincts, large regional
centres and other strategic locations.
In rural areas, community postal agencies are usually colocated with other community facilities (e.g. local shops).
Street post boxes should be located at strategic post-points, in
small shopping centres and along major arterial roads.
The funding of new facilities is subject to Australia Post
priorities and an assessment of the capacity of existing
facilities for expansion.
Implementation Guideline No. 5—Social Infrastructure Planning
Primary Schools—Public
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding
responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
Primary schools are educational facilities for students between
the ages of 5 and 13, offering Preparatory through to Year 7 (P7).
Primary schools are provided by the State Government, church
organisations and other private providers. The Department of
Education, Training and the Arts (DETA) is responsible for
forward planning, budgeting, and construction management of
State primary schools. Private education organisations and
religious organisations establish school facilities in response to
identified market demand and organisational frameworks.
DETA plans for a rolling 20-year horizon. Departmental
standards and their application is a comprehensive and
complex process, with catchment demarcation an important
element. Catchments are determined with reference to
adjoining schools.
The establishment of new schools is subject to detailed access
and viability criteria. Decisions are made through the
application of DETA standards to projections of student
population at the local level. Whilst a rough rate of provision of
one primary school per 3,000 households has been used in the
past, significant variation is being introduced in new
communities, where the range of dwelling types and densities
are taken into account.
Site area: 6.5–7 ha. Land must be well drained, of
unexceptional topography and with regular dimensions. Where
schools can be appropriately located with adjacent sporting
facilities and open space, DETA may exercise its discretion to
reduce site requirements.
At present, the gross floor area required for approximately 625
P–7 students is about 5,500 m2 (excluding any special
education unit).
Refer to the DETA standard building design and site layout
guidelines.
Preparatory year students (aged 5) through to year 7 pupils
(aged 12–13).
Ideally, primary schools should be located at the geographic
centre of the population catchment, with frontage to a local
collector road, and ideally accessed safely by means other than
private cars.
The multiple use of school facilities varies from long-term
commercial usage, to community use of sporting facilities, to
casual use of school halls. Co-location is supported, provided
that the locational criteria required for schools are not
compromised.
Master planning of new schools is required to allow a sufficient
site area and appropriate design to cater for the inclusion of a
child care centre.
The funding of new schools is subject to State Government
priorities. Reference should be made to the SEQ Infrastructure
Plan, which includes school funding priorities.
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Implementation Guideline No. 5—Social Infrastructure Planning
Religious Facilities
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006.
Description of
facility
Agency with
primary funding
responsibility
Planning and
decision-making
process
Comparative rates
of provision
Indicative minimum
site requirements
Design criteria
Target groups
Other
considerations
Funding/delivery
104
A place of worship providing one or more meeting spaces.
Facilities may be used for social, educational and recreational
activities, and are sometimes available for hire by the general
community for other purposes.
Religious organisations
Religious organisations have their own criteria for the location of
facilities and the primary roles in planning, funding and operating
them. Most religious organisations purchase land and construct
their own special purpose facilities; however an increasing trend
is to rent multi-purpose community centres/halls provided by
others. Facilities are rarely planned in collaboration with other
providers, and there is little multi-use and co-location.
Benchmarks vary enormously by type of religion/organisation
and there are no commonly used standards.
Site and floor space requirements vary, depending on the type of
religion/organisation (from a small church to a
temple/monastery).
Design is influenced by the nature of the religion and the size of
the organisation. They can be small stand-alone facilities, or
flexible, multi-purpose facilities with child-safe areas, disability
access, informal areas, meeting rooms, performance space,
convention facilities, storage, commercial kitchen and office
areas, and landscaping, lighting and signage to enhance visibility
and security. In some cases they can include accommodation
(e.g. a monastery). Facilities can have large car parking
requirements at peak usage times.
Targeted at individual religious groups with particular customs
and traditions.
New models include multiple-use facilities which serve other
community purposes and provide a financial return for the
organisation.
Innovative approaches include hiring existing community facilities
rather than purpose-built facilities which may only be used for a
limited number of hours per week.
It is preferable that facilities be located at or near public transport
stops.
Funding of new facilities is subject to organisational priorities.
Implementation Guideline No. 5—Social Infrastructure Planning
Secondary Schools—Public
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding
responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
Secondary schools are educational and training facilities for
students between the ages of 12 and 18.
Secondary schools are provided by the State Government,
church organisations, and other private providers. The
Department of Education, Training and the Arts (DETA) is
responsible for the forward planning, budgeting, and
construction management of State secondary schools. Private
education organisations establish school facilities in response
to identified market demand and organisational frameworks.
The same process used for primary education planning and
decision-making is used for secondary schools.
The establishment of new schools is subject to detailed access
and viability criteria. A rough rate of provision of one secondary
school per 8,000 households has been used in the past,
however this is subject to significant variation based on the
planning factors outlined for primary schools. As with primary
schools, school planning should be carried out by DETA staff.
A 12 ha site is required. Land must be well drained, of
unexceptionable topography and with regular dimensions.
Where schools can be appropriately located with adjacent
sporting facilities and open space, DETA may exercise its
discretion to reduce site requirements. A school with a total
capacity in the vicinity of 1,500 students would have a target
GFA in the vicinity of 16,870m2.
Standard building designs are employed for the components of
the building core, including specialist as well as general
learning spaces. A 30 year measurable life is used in detailed
facility planning, but to date most schools have exceeded this
lifespan.
Young people aged 12/13 to 18 years
A school is justified when it appears that a new or expanded
catchment is able to be formed, that is the requisite number of
dwellings will be built within a certain timeframe.
Significant variations to benchmarks are being introduced with
planning practices which encourage a range of dwelling types
and densities within any one area.
Schools typically open under Year by Year staging, e.g. Year 8
in the first year of operation, and Year 9 in the second.
Co-location is supported, provided that the locational criteria
required for schools are not compromised.
Ideally located at the heart of a residential community, central to
the population catchment, with road frontage to a district
collector road.
The funding of new schools is subject to State Government
priorities. Reference should be made to the SEQ Infrastructure
Plan for school funding priorities.
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Implementation Guideline No. 5—Social Infrastructure Planning
TAFE (Technical and Further Education) College
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Other considerations
Funding/delivery
106
TAFE colleges provide vocational education and training
services in a broad range of industry areas. Courses are
delivered on campus (classroom delivery), in the workplace,
online, by distance or by a combination of these modes.
Department of Education, Training and the Arts (DETA)
DETA prioritises areas and issues for capital investment based
on a weighted assessment process derived from strategic
planning. Benchmarking includes an assessment of factors
relating to industry demands, jobs/skills demands, and an
analysis of required training outputs and their floor space
demands. Arrangements are made with universities, councils
and developers to co-locate and share facilities, where
possible.
New facilities are usually guided by a rolling plan approved by
DETA.
District
1:over 50,000
Regional/Local Government
1:over 150,000
Area-wide
Site: 3–12 ha. Estimates vary significantly depending on the
industry or training type, e.g. conventional classrooms (2 m2 per
student) and automotive training (18 m2 per student).
A flexible design to accommodate changes in training priorities.
TAFE colleges need to be situated within walking distance of
public transport, have clear access/egress to roads and
infrastructure services, and should preferably be fenced and
not be subject to urban encroachment. New trade training
facilities must be sited in industrial areas. Shared use of
facilities with universities and other facilities such as community
centres is also possible.
Funding of new facilities is subject to State Government
priorities and an assessment of the capacity of existing facilities
for expansion/integration, or delivery through outreach services.
Implementation Guideline No. 5—Social Infrastructure Planning
University facilities
Universities are a Commonwealth-funded tertiary education facility.
New
universities and campuses of existing universities are generally developed in
response to Commonwealth and State Government initiatives. Universities service
local, regional, interstate and international catchments. The region’s universities
are located in Brisbane, Toowoomba, the Sunshine Coast and Gold Coast. The
University of the Sunshine Coast is the newest university in South East
Queensland, and serves a regional population of over 250 000 people.
Universities’ offerings and facilities are built up over time. On-line learning, external
enrolments and the provision of satellite campuses are changing rates of
provision.
Universities commonly develop campuses in regional centres outside Brisbane, for
example at Logan, Ipswich, Caboolture, and Gatton. Partnerships with local
councils and communities have also seen satellite campuses established in
smaller centres, for example in Noosa (the University of the Sunshine Coast’s
Junction Youth and Community Centre,) and Pomona (Central Queensland
University’s Pomona Secondary College, and Rural Futures Centre). Satellite
campuses range in size from one room in a shared facility (e.g. Noosa), to
comprehensive teaching facilities as part of shared civic development (e.g. Hervey
Bay), to substantial stand-alone campuses (e.g. Logan).
Specific planning guidance should be investigated during the preparation of the
infrastructure plan. Private universities can also be attracted to areas.
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Implementation Guideline No. 5—Social Infrastructure Planning
Youth Centre/Service
The information below is indicative only, should form part of a wider assessment of
local need, and should not lead to the expectation that the comparative rate of
provision will be attained. The information is current as at 2006. Queensland
Government departmental websites should be accessed and agency staff contacted
to identify any updates to these planning requirements.
Description of facility
Agency with primary
funding responsibility
Planning and
decision-making
process
Comparative rates of
provision
Indicative minimum
site requirements
Design criteria
Target group
Other considerations
Funding/delivery
108
A youth centre is a community centre specialising in meeting
the needs of young people. The facility usually houses a youth
worker or program co-ordinator to deliver on-site and outreach
youth programs and services. While youth centres may be
accommodated within multi-purpose facilities, they require a
specific focus.
Local councils, in partnership with local community groups
and/or regional/statewide providers.
Local councils usually identify the need in consultation with
communities, and as part of planning for local and district
community centres. Youth facilities are often established using
a pastiche of funding.
Local facility
1:10,000–20,000
District centre
1:20,000–50,000
Requirements vary significantly from facility to facility. A
minimum floor area of 600–1,000 m2 should be considered for a
district-level facility. The site may be large enough for
recreational uses (5,000–10,000 m2) or adjoin open space.
Local facilities can be as small as a house (e.g. 200 m2 on a
small site). Office space or shop fronts are other models.
Ideally, the facility should provide multiple spaces for weekend,
evening and every-day use, with casual drop-in capability a
necessity. The facility should be designed in consultation with
young people. It should be suitable for amplified music and
dancing, and include activities and equipment of interest to
young people, including computers, games and sports.
Young people aged 12–25, with a particular focus on people
12–18 years old.
Master planning for greenfield areas in particular should
consider the need for youth facilities, and all new community
centres should include planning for young people’s needs. The
location/design should be integrated with open space and
recreation facilities to maximize opportunities for the delivery of
youth recreation programs. Youth centres can be co-located
with other facilities, but management of potentially conflicting
uses of space is required.
Outdoor areas should complement indoor uses (e.g. skate
parks).
The funding of new facilities is subject to local council and State
Government priorities. Capital funding is usually sourced
through partnerships between local and State governments,
and community groups. Operational funding is usually provided
by local councils, with potential for program/service funds from
the State Government.
Implementation Guideline No. 5—Social Infrastructure Planning
Appendix 2: Types of Services
Family Support and Child Protection
•
•
•
•
•
•
•
•
child care
child protection
services and programs to prevent social isolation
family support, including for culturally and linguistically diverse and Indigenous
families
affordable counselling services
domestic violence prevention and support services, including emergency housing
integrated information and referral
mediation services.
Services for Young People
•
•
•
•
•
•
•
•
employment and training options, for local jobs
personal support and counselling
alternative education services
community participation and recreation options
juvenile justice services
programs for children and young people with learning difficulties
youth suicide prevention
life skills programs.
Services for People with Disability
•
•
•
•
•
•
•
training and employment options which lead to secure employment
educational support
community participation and recreation options
emergency respite
life skills programs
mobility/recreation aids
community transport.
Services for Older People
•
•
•
•
•
community/public transport, including wheel-chair-accessible transport
community aged care, extended care/at home services
access to allied health services that promote wellness
services and programs to reduce social isolation
carer support and respite services.
Community Health and Safety
•
•
•
•
•
community health services provision
health promotion and information resources
access to general and specialist medical practitioners
auxiliary fire service support and marine rescue
search, rescue, medical evacuation and counter disaster.
Cultural Services
•
•
•
community events, festivals and conferences
community library, information services and cultural awareness services
cultural skills development, expression and performances.
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Implementation Guideline No. 5—Social Infrastructure Planning
Appendix 3: Examples of Innovation in Community Facilities and
Service Provision
Private–Public Partnerships
Case study 1: Library Link—Domain Bakery, South Yarra, Victoria
In 2004 Melbourne City Council, in conjunction with the Yarra-Melbourne Library
Corporation, decided that more innovative means of delivering their library
services were required in order to maximise their use. Noting that there had been
a shift to multi-tasking, even in social contexts, the council invited Domain Bakery
to become a partner in a program that enabled library services to be sourced in a
café/bakery setting.
The service/facility includes a bakery with comfortable seating and four computer
terminals that are directly linked to the Library-Link website. Community members
are able to browse library details, select books from all over Victoria, and have the
books they desire delivered to the library closest to their home free of charge.
Online access to other databases and magazines is also available.
The council provided the funding for the library component of the agreement,
Domain Bakery owns the site and runs the commercial operations, and Yarra–
Melbourne Regional Library Corporation manages the online library element of the
facility, as well as supplying newspapers for the bakery and its patrons.
Case study 2: Private–Public Partnership, school co-location, Golden Grove,
South Australia
The Golden Grove joint school initiative involved the co-location of, and shared
facility use by, Golden Grove High School (a public school), Gleeson College (a
private Catholic school) and Pudare Christian College (a private Anglican Uniting
school). These three educational facilities share a senior school library and eight
senior school faculties. Through co-location and Private–Public Partnerships, they
were able to amalgamate some components of the curriculum. The schools offer
information communications technology and business education, science, music,
home economics, physical education, drama, design technology and art, as well
as other required subjects such as English and history.
The key stakeholders included the three schools, the South Australian Urban Land
Trust, which provided the land, and several South Australian State Government
departments.
There are several shared facilities on the site, including:
•
•
•
•
•
•
•
•
•
the senior Thiele Library
four computer rooms
six science laboratories
industrial-level technology workshops
visual-art studios
catering kitchen and dining room
three gymnasiums
drama studio and theatre
music suite comprising several studios.
All of these facilities are considered state-of-the-art, with Gleeson College
describing them as some of the best in Australia. Some of the facilities are shared
with the general community, offering them an integral set of facilities.
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Implementation Guideline No. 5—Social Infrastructure Planning
The shared buildings are owned by the Department of Education. A joint-use
agreement has been signed by the Minister and the two private schools.
The budget for the running costs of the facilities is split between the three schools,
based on the number of students from each school who use the facilities. The
ongoing repair and maintenance costs are also split proportionally. The Minister
responsible for the area provides funding support for any significant capital works,
earth moving or large-scale construction.
Overall, the shared-facility agreement is considered to be very effective. It offers
substantial cost savings to the participants. Nonetheless, there is a need for a
commitment by all parties to ongoing financial support and commitment by all
parties is a necessity. Consortiums attempting to replicate the scenario at Golden
Grove are advised to ensure that agreements—both budgetary and facilityoriented—are in place prior to the construction of facilities. Furthermore, the
operators of the Golden Grove facility noted that their dealings with crown law
involved substantial timeframes—this should be incorporated into the costings at
the outset.
Infrastructure agreements with developers
Case study 3: Pathways multi-purpose facility, Northlakes, Pine Rivers,
Queensland
Pathways is a $13.8 million, multi-purpose community facility combining a new
state-of-the-art library, leisure centre, education and training centre, village-green
and meeting and function spaces. Other facilities include: meeting rooms, a
community garden, coffee shop, indoor and outdoor recreational spaces, youth
and children’s spaces, aquatic centre, indoor sports hall, enterprise centre, and a
senior state secondary college, whose students have access to the
abovementioned library (construction was due to be completed at the beginning of
the 2007 school year).
The stakeholders and managers of the development include:
•
•
•
•
•
•
Pine Rivers Shire Council, which initiated the project to create a ‘nerve
centre for the community’
Bovis Lend Lease, the developer
Education Queensland, which is currently in the process of co-locating a
senior state secondary college at the facility
Sport and Recreation Queensland and the State Library of Queensland,
which made significant contributions to the establishment costs of the
venture
Queensland Government, which provided funding for the project
Northlakes community, who will use the facility, and were heavily involved
in the consultation phase of the development of the centre.
The State Library of Queensland and Sport and Recreation Queensland were
significant contributors to the establishment of the venture, with the Queensland
Government providing an additional $1 million grant to get more Queenslanders
active through sport and recreation.
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Use of cross-subsidies
Case study 4: Castle Grand, Baulkham Hills Shire, New South Wales
The Baulkham Hills Shire Council was struggling to fund the required social
facilities for their community from council’s consolidated revenue (rates). Acting as
a developer and owner, the council commissioned a private developer to deliver
62 residential units at an agreed rate of return. The profits from the development
were then invested in community facilities, including a community centre (2,000
m2) with a 500-seat auditorium, five meeting rooms, an early childhood centre and
a library (1,900 m2) incorporating a coffee shop, council customer service centre
and internet facilities.
The project partners included the council, Brewster Horth Architects, Grant
Constructions Pty Ltd and the community.
Co-location of services and facilities
Case study 5: Mount Pleasant Community Centre—creating a community hub in
Kingsway, Vancouver
When determining the potential need for new library facilities, the Vancouver
Public Library decided to consider the community’s collective infrastructure needs.
The City of Vancouver’s Community Services Group, in conjunction with the Mount
Pleasant Community Centre Association and the Park Board, commissioned a
report to determine the need for community facilities. The report identified the
need for a multi-purpose centre incorporating a library facility and child
development centre, as well as a residential component and other uses. The initial
report and on-going consultation was funded by the City of Vancouver. A range of
local and Commonwealth government departments will provide funds for the
establishment of the facility. The facility is expected to open in the Canadian
autumn of 2007; its ongoing operations will be the responsibility of local
government.
The 4,600m2 facility incorporates a community centre with the latest
communications technology and a range of leisure activities for all ages (2,900
m2), a library (1,100 m2) and a child development centre catering for 49 infants
between the ages of 0 and 5 (630 m2). In addition, there are approximately 98
apartments/units available for rent, which will help subsidise the provision of the
community facilities.
Case study 6: Junction Youth and Community Centre, Noosa, Queensland
Noosa Shire Council has developed a co-located community facility in partnership
with the community and University of the Sunshine Coast. The facility contains a
320-seat auditorium, a lounge and recreational area, meeting and workshop
rooms, a café, a community radio station, and a campus of the University of the
Sunshine Coast. The facility opened in October 2006.
Capital funds were obtained through State and Commonwealth grants and some
local council funds. The council is responsible for ongoing costs. An advisory
committee of 10 community members has been formed to ensure the facility
remains receptive to community needs.
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Collaboration and integrated service delivery
Case study 7: Early Years Centres
The Department of Communities, Queensland Health, and the Department of
Education, Training and The Arts are working together to establish four Early
Years Centres for families with children from pre-birth up to eight years of age.
The Queensland Government allocated $3 million in 2006–07 to commence the
development of the Early Years Centres. This investment will increase to $8 million
per year from 2007–08.
The first two centres will be established in Caboolture and Nerang in 2007.
Negotiations are underway regarding co-location with existing facilities in these
areas.
The remaining two centres, in Cairns and Browns Plains, are likely to be purposebuilt. Opportunities will be sought for co-location with other early childhood
facilities, such as community health precincts and schools.
Early Years Centres will be part of an integrated prevention and early intervention
service system. The centres will provide high-quality early childhood education and
care, health and family support services, and targeted services for some families.
The centres will introduce some new or additional services and, importantly, focus
on bringing together existing services and ensuring improved referral and
information pathways to allow for a ‘one-stop-shop’ approach.
Specialist, multidisciplinary early-years teams will work out of each centre to
deliver a broad range of services. The teams will be responsible for working with
children and families, staff in early childhood centres, and outreach services. They
will also conduct health screenings, developmental assessments and facilitate
referrals to specialist services.
Case study 8: POEM (Partnership Outreach Education Model) Project
The POEM Project operates at several sites in five states. The project provides
young people who are disconnected from mainstream schooling with another
chance at learning through accredited, flexible training and education facilities.
The project explores ways of supporting vulnerable young people in community
settings and ensuring that their preferred learning styles are identified and their
cultural, social and physical needs are met. Initially, the service was intended to
run only from 2002 to 2003, however an additional $34.9 million of project funding
was announced in the 2006–07, which will cover the costs of the service until June
2010.
The Commonwealth Department of Education, Science and Training (DEST)
initiated and co-ordinated the POEM Project; other agencies, such as Education
Queensland, the TAFE sector, Department of Communities and Families, and
youth workers are involved in the running of the service. Teachers and youth
support workers work together to ensure all needs are met.
DEST provided $4 million over the 2002–03 period to support 21 POEM initiatives,
enabling an additional 40 per cent to be leveraged in financial and in-kind
contributions from community partners. The combination of educational services
and youth support has been integral to the success of the service, while
engagement strategies have led to participants gaining a degree of ‘ownership’ of
the project.
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Appendix 4: Funding Sources
LOCAL GOVERNMENT OPTIONS
Infrastructure Charges
Infrastructure Charges Schedules (ICSs) can be developed and implemented by
local councils throughout Queensland. Importantly, ICSs are limited to ‘development
infrastructure’ and can apply to15:
‘(a)
(b)
Land, capital works or land and capital works for any of the following
infrastructure:
(i) Urban water cycle management infrastructure (including
infrastructure for water supply, sewerage, collecting water,
treating water, stream managing, disposing of waters and flood
mitigation); or
(ii) Transport infrastructure (including roads, vehicle lay-bys, traffic
control devices, dedicated public transport corridors, public
parking facilities predominantly serving a local area, cycle ways,
pathways, ferry terminals and the local function, but not any other
function, of State-controlled roads); or
(iii) Public parks infrastructure supplied by a Local Government
(including playground equipment, playing fields, courts and picnic
facilities); or
Land, and works that ensure the land is suitable for development for
local community facilities, including, for example—
(i) community halls or centres
(ii) public recreation centres
(iii) public libraries.’
(1)
The infrastructure charge—
(a) Must be for trunk infrastructure
(b) Must not be more than the proportion of the establishment cost of the
infrastructure that can be apportioned to the premises for which the
charge is stated
(c) If it is levied for an existing lawful use—must be based on the current
share of usage of the infrastructure at the time the charge is levied.
(2)
Section (1) (c) does not apply if the Local Government and the owner of the
land to which the charge relates otherwise agree in writing.
However, an infrastructure charge must not be levied for a work or use of
land authorised under the Minerals Resources Act 1989.
(3)
Infrastructure Agreements
Section 5.1.12 of the Integrated Planning Act provides for the making of
‘infrastructure agreements’ between private and public sector entities. These
agreements can make provision for the funding or provision of either development
infrastructure or any other infrastructure item—whether or not the item is identified in
an infrastructure charges plan.
General Rates
Councils collect rates from all properties in their Local Government Area (LGA).
These are known as general rates or consolidated revenue. They are expended on
works and services that are beneficial to the community. No special nexus between
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the collection of the charge and its expenditure is required.
Special Rates or Charges
The Local Government Act 1993 allows for the levying of special rates (in the dollar)
or charges (as a flat rate). These are in addition to the general rate and can be used
to fund particular infrastructure works. They are, in effect, a user charge that can
apply as a one-off, up-front payment, or as a series of payments over a number of
years. The Act requires the development of an ‘overall’ works plan which the special
rates or charges will fund.
The Act also provides for the levying of separate rates and charges. These are
distinguishable from special rates or charges in that they apply to all rateable
properties in an LGA.
No ‘special’ benefit has to be identified, however the associated policy must indicate
the categories of costs expected to be covered and the basis on which the rate or
charge is decided.
STATE AND COMMONWEALTH GOVERNMENT FUNDING AND GRANTS
State and Commonwealth Tax Transfers
The State and Commonwealth governments are responsible for the provision of
infrastructure such as schools, hospitals, police stations and emergency services
facilities. These are funded through general taxation transfers.
Grants
The State and Commonwealth governments also offer grants and subsidies for
infrastructure and programs that assist in meeting higher-order needs. A sample of
the grants made in 2006 is provided below.
Department of Communities (State)
The Department of Communities has developed a ‘one-stop’ guide to all community
service outcomes and activities funded by the department. Specific funding
information can be accessed at: www.communities.qld.gov.au/department/funding/.
Department of Families, Community Services and Indigenous Affairs
(Commonwealth)
Local Answers
This grant scheme helps fund local, small-scale projects that assist disadvantaged
communities to build skills and capacity in order to identify opportunities and take
action for the benefit of their members.
The projects and aims of the scheme include:
•
•
•
building effective parenting and relationship skills
building opportunities and skills for economic self-reliance in families and
communities
strengthening support for families and communities.
Achieving these aims will require the delivery of better services and the addressing of
unmet needs through the building of partnerships between local services; and
assisting members of the community to get involved in community life through local
volunteering.
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Aboriginal and Torres Straight Islander Commission Community
Housing and Infrastructure Program
Funding for this program is granted in an effort to improve the living environment of
Indigenous Australians by providing people in need with housing and associated
infrastructure. This is achieved through:
•
•
•
•
•
provision of housing and associated services such as capital construction
purchase and upgrade of adequate and appropriate rental housing
supplementary recurrent funding for the general administration costs of
Indigenous housing organisations
recurrent funding for repairs and maintenance of existing housing stock
essential infrastructure and funding for the National Aboriginal Health Strategy.
Department of Transport and Regional Services (Commonwealth)
Regional Partnerships
Regional Partnerships is a funding program that aims to foster the development of
self-reliant communities and regions. This approach is consistent with the Federal
Government’s framework for developing Australia’s regions: Stronger Regions, A
Stronger Australia.
There are four core areas the funding program focuses on, namely:
• strengthening opportunities for economic and social participation in the
community
• improving access to services by investing in projects
• cost-effective and sustainable provision
• supporting communities to access and services.
This funding program gives priority to regional communities with populations of less
than 5,000 people, and projects that assist specifically identified communities and
regions to adjust to major economic, social or environmental change.
Rural Medical Infrastructure Program
Funding for this program is distributed over a three-year period to enable small rural
towns with 10,000 residents or less to help establish ‘walk-in, walk-out’ community
medical facilities, making it easier to recruit or retain general practitioners. Some
local councils have established community medical clinics that doctors can use for a
reasonable charge, but many small councils simply do not have the resources to do
this. The program can contribute up to $200,000 towards the cost incurred by
councils that purchase and fit out the facilities, which provide continuity of service
regardless of doctor turnover.
Foundation for Regional and Rural Renewal
The FRRR, which has an independent board, is a charitable foundation that receives
a majority of its funding from the Commonwealth government. Its aim is to help
provide a viable social and economic future for Australia’s rural and regional
communities. The foundation funds projects that have the potential to achieve
significant results for people within rural and regional Australia.
Department of Communication, Information and the Arts
(Commonwealth)
Broadband Demand Aggregation Program (National Broadband Strategy)
This funding program is designed to increase the availability of broadband access
within Australian communities. It also aims to coordinate demand to encourage
investment in broadband infrastructure across all levels of government. The
program is part of the National Broadband Strategy, which seeks to provide
affordable and extensive broadband services to regional centres as well as
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metropolitan ‘black spots’. The strategy also aims to establish demand aggregate
brokers, who will work with registered companies to generate a business case for
investment in community broadband services.
Australia Council for the Arts (Commonwealth)
Community Cultural Development Fund
This fund enables communities to advance their artistic and social aspirations by
working closely with professional artists. Through these ongoing collaborations,
communities are:
•
•
•
assisted to maintain or reclaim their culture
able to address issues of concern to them
able to create contemporary artistic works which reflect the richness and diversity
of Australian communities and their cultural life.
Department of Education, Training and the Arts (State)
Cultural Infrastructure Program
Funding for this program, which includes funding for ongoing operations and cultural
facilities projects, is intended to promote the development of a vibrant arts and
cultural sector by supporting professional arts and cultural organisations.
It aims to achieve greater community access to arts and culture, effective
organisational and physical infrastructure for arts and culture, and sustainable and
distinctive arts and cultural festivals.
Arts and Museums Development Program
This program helps individuals and organisations meet the costs of one-off projects
and provides single-year operational funding for eligible organisations. Priority is
given to proposals that include community consultation and with outcomes that
benefit the community.
Gritty Places Partnership Program
Gritty Places is a capital partnership that helps local governments foster creative
industry development through the recycling of redundant or under-utilised buildings in
their communities. The program—a partnership between the State Government
(through Arts Queensland), local councils and arts organisations—contributes
towards the costs of adapting disused council buildings for arts use.
Department of Veteran Affairs (Commonwealth)
Veteran and Community Grants
This grants program aims to maintain and improve the independence and quality of
life of members of the veteran community. This is achieved through the provision of
financial assistance for activities, services and projects that sustain and/or enhance
wellbeing.
Department of Local Government Planning, Sport and Recreation (State)
Regional Collaboration and Capacity Building Program
This is a funding program in which neighbouring councils work together to explore
the feasibility of providing joint facilities or services.
Regional Centres Program
This funding program is for projects that generate genuine regional benefits. It
applies to infrastructure and community facilities projects, including the revitalisation
of central business areas, tourism infrastructure, foreshore development (excluding
beach replenishment), social and community centres, and streetscaping. There is a
particular emphasis on projects that create long-term employment opportunities or
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contribute to regional growth.
Celebrating 150 years of Queensland Statehood
Funding for projects that create a legacy for Queensland’s 150th anniversary of
statehood.
Security Improvement Program
Funding for local governments to reduce or prevent crime by investing in enhanced
security infrastructure and equipment in public places.
Showgrounds Grant
The Showgrounds Grant replaces the Showgrounds Capital Works Subsidy Scheme.
Local Recreation and Sport Program (previously the Local Government
Development Program)
Funding for local governments to undertake recreation planning, provide
opportunities and develop places to increase participation in sport and active
recreation. Projects can entail infrastructure planning for sports and recreation
facilities, education and training, and active participation in sports and recreation.
Indigenous Community Development Program
This program has been developed to help fund Aboriginal shire councils, Torres
Strait Islander councils and Aboriginal and Torres Strait Islander organisations to
create better opportunities for Indigenous people to participate in sport and recreation
in their communities.
Rural Living Infrastructure Program
This program provides financial assistance to local governments to enhance the
quality of life of people living in rural Queensland. Grants are given to projects
involving the provision or improvement of community recreational, sporting or
physical infrastructure, the provision of greater incentives for people to continue to
live in rural towns, and projects that increase the tourism potential of rural towns
through an improvement in the physical environment.
Major Facilities Program
Funding to develop and enhance sport and recreation infrastructure to meet
community participation needs; support local, regional and state levels of
competition; and enable Queensland to attract and host key events.
The Community Sport and Recreation Facilities Program
Funding for Queensland organisations to develop recreation and sports facilities
across the state. The program provides financial assistance to eligible organisations
to construct, extend, upgrade or develop recreation and sports facilities for
community use. Examples of eligible projects include facilities that provide for sport
up to regional level of competition, community recreation and/or other physical
activities.
Minor Sport and Recreation Facilities Program
This program aims to increase the quality and quantity of recreation and sports
facilities throughout Queensland. The program provides financial assistance to
eligible recreation and sports organisations, local governments and Indigenous
community councils to assist in the construction or upgrading of facilities. Projects
eligible for funding include the construction of new facilities for sport at the local and
regional level, construction of support facilities for outdoor recreation, and the
upgrading or expansion of existing facilities to provide higher-quality or additional
sports or recreation participation opportunities.
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Queensland Treasury
Gambling Community Benefit Fund
Queensland Treasury allocates one-off grants of up to $30,000 to Queenslandbased, non-profit community organisations. These grants help provide services or
fund activities that benefit the community. Grants are allocated in March, June,
September and December.
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Appendix 5: Notes for Implementation Section
Local Growth Management Strategy Requirements
As noted in Section 8, a Local Growth Management Strategy (LGMS) essentially
provides local governments with strategic guidance for achieving the objectives of the
SEQ Regional Plan. Although issues associated with the planning and coordination
of social infrastructure can be highlighted in an LGMS, this infrastructure is primarily
dealt with through other channels (e.g. Priority Infrastructure Plans and Infrastructure
Agreements). The exception to this is State-level infrastructure, which will need to be
considered at the LGMS stage.
The minimum planning horizon for an LGMS is to 2026. Core matters to be
addressed include land use and development, infrastructure and valuable features.
The areas that are required to be addressed in an LGMS include:
•
•
•
•
•
•
•
•
•
•
housing needs, diversity and affordability required for future communities
how dwelling targets and particularly infill targets will be achieved, along with
associated jobs and infrastructure
expression of economic development strategies identified in the SEQ
Regional Plan and elsewhere
priorities for investigating and planning for higher densities, including
identifying transit oriented communities
potential new infrastructure and upgrades, and areas of potential State
Government interest
land and infrastructure availability in regional activity centres
measures to prevent inappropriate out-of-centre development
available greenfield and redevelopment areas that require structure planning
or master planning
planning scheme amendments required to implement the LGMS
preferred sequencing and timing of development and infrastructure.
Summarised from SEQ Regional Plan Implementation Guideline No. 2: Local
Growth Management Strategies
Development Infrastructure Defined (Integrated Planning Act 1997)
Development Infrastructure
‘(a) land or works, or both land and works for:
(i) urban water cycle management infrastructure (including infrastructure for
water supply, sewerage, collecting water, treating water, stream
managing, disposing of waters and flood mitigation); or,
(ii) transport infrastructure (including roads, vehicle lay-bys, traffic control
devices, dedicated public transport corridors, public parking facilities
predominantly serving a local area, cycle ways, pathways and ferry
terminals and the local function of State-controlled roads);
(iii) public parks infrastructure supplied by a Local Government (including
playground equipment, playing fields, courts and picnic facilities) or,
(b) land and works that ensure the land is suitable for development, for local
community facilities, including, for example:
(i) community halls or centres; or
(ii) public recreation centres; or
(iii) public libraries.’
Definition, Schedule 10, IPA 1997
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Impact Mitigation Payments
If a local government authority has a priority infrastructure plan in place, and
development occurs outside the stated expectations (requiring infrastructure to be
supplied either at a time earlier than expected, or delaying infrastructure receipts due
to less-than-expected densities), local and State agencies can gain additional funds
to support the supply and efficiency of infrastructure. These are known as impact
mitigation payments and are supported by the Integrated Planning Act (refer below).
Local Governments may impose additional costs to recover trunk
infrastructure costs in Priority Infrastructure Areas:
(1) ‘The costs that may be required by a Local Government under s5.1.25 for
development completely in the priority infrastructure area, may only include:
(a) For trunk infrastructure to be supplied earlier than anticipated in the
priority infrastructure plan (PIP)—the difference between the
establishment cost of the infrastructure made necessary by the
development and the amount of any charge paid for the infrastructure;
(b) For trunk infrastructure associated with a different type, scale or intensity
of development from that anticipated in the PIP—
i) for a different type, a greater scale or a greater intensity of
development—the establishment cost of any additional trunk
infrastructure made necessary by the development; or,
ii) for a lesser scale or lesser intensity of the development— the
difference between the establishment of the infrastructure identified
in the plan and the establishment cost of the infrastructure necessary
for the development.
(2) The applicant is entitled to a refund from the infrastructure provider, on terms
agreed with the infrastructure provider, for the proportion of the establishment
cost of the infrastructure—
(a) that reasonably can be apportioned to the other users of the
infrastructure mentioned in (1) (a) or (1) (b) (i); and,
(b) collected, or to be collected, under an Infrastructure Charges Schedule.
s5.1.26, IPA 1997
Local Governments may impose additional costs to recover trunk
infrastructure costs outside Priority Infrastructure Areas:
(1) The costs that may be required under Section 5.1.25, for development
completely or partly outside the priority infrastructure area, may only include,
for each network—
(a) the establishment cost of any trunk infrastructure made necessary by the
development; and
(b) either or both of the following establishments costs of any temporary
infrastructure—
i) costs required to ensure the safe or efficient operation of the
infrastructure mentioned in paragraph (a); or
ii) costs made necessary by the development; and
(c) the decommissioning, removal and rehabilitation costs of any temporary
infrastructure mentioned in paragraph (b); and
(d) the maintenance and operating costs of the infrastructure mentioned in
paragraphs (a) and (b), for up to 5 years.
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(2) Subsection (3) applies if the planning scheme indicates the premises is part of
an area intended for future development for—
(a) residential purposes; or
(b) retail or commercial purposes; or
(c) industrial purposes.
(3) For subsection (1)(a), trunk infrastructure made necessary by the
development includes the trunk infrastructure necessary to service the
balance of the area mentioned in subsection (2).
s5.1.27, IPA, 1997
State Infrastructure Provider Additional Costs in Priority Infrastructure
Areas:
(1) The costs that may be required by a State infrastructure provider under
Section 5.1.30, for development completely in the priority infrastructure area,
may only include—
(a) for infrastructure to be supplied earlier than the time anticipated in the
priority infrastructure plan, the difference between—
i) the present value of the establishment cost of the infrastructure; and
ii) the present value of the establishment cost of the infrastructure, if
the approval had not been given; or
(b) for infrastructure associated with a different type, scale or intensity of
development from that anticipated in the priority infrastructure plan—the
establishment cost of any additional infrastructure made necessary by
the development.
(2) The applicant is entitled to a refund from the State infrastructure provider, on
terms agreed with the State infrastructure provider and the local government,
for the proportion of the establishment costs of the infrastructure—
(a)
that reasonably can be apportioned to the other users’ premises
mentioned in subsection (1)(b); and
(b)
collected, or to be collected, under an infrastructure charges schedule.
s5.1.31, IPA, 1997
State Infrastructure Provider Additional Costs outside Priority Infrastructure
Areas:
(1) The costs that may be required under Section 5.1.30, for development
completely or partly outside the priority infrastructure area, may only include—
(a) the establishment cost of any infrastructure made necessary by the
development; and
(b) the maintenance and operating costs of the infrastructure mentioned in
paragraph (a) for up to 5 years; and
(c) the establishment, maintenance and operating costs of any temporary
infrastructure required to ensure the safe or efficient operation of the
infrastructure mentioned in paragraph (a) for up to 5 years.
(2) Subsection (3) applies if the planning scheme indicates the premises is part of
an area intended for future development for—
(a) residential purposes; or
(b) retail or commercial purposes; or
(c) industrial purposes.
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(3) For subsection (1)(a), infrastructure made necessary by the development
includes the infrastructure necessary to service the balance of the area
mentioned in subsection (2)’.
s5.1.32, IPA, 1997
Negotiated Infrastructure Agreements
Nothing included in the Intregrated Planning Act overrides the local government
authority’s opportunity to secure infrastructure agreements with other willing parties.
These are written agreements between the local council and developer/land owner
that satisfy both parties. The legislation regarding these agreements is provided
below (refer to all clauses, although clauses (3), (4) and (6) specifically deal with
social infrastructure).
Infrastructure Agreements
S5.1.12 Agreements about, and alternatives to, paying infrastructure charges
(1) ‘Despite Sections 5.1.8 and 5.1.9, a person to whom an infrastructure charges
notice has been given and the infrastructure provider may enter into a written
agreement about one or more of the following—
(a) whether the charge may be paid at a different time from the time stated
in the notice, and whether it may be paid by instalments;
(b) whether the infrastructure may be supplied instead of paying all or part
of the charge;
(c) whether infrastructure that delivers the same standard of service as that
identified in the priority infrastructure plan may be supplied instead of the
infrastructure identified in the infrastructure charges schedule;
(d) if Section 5.1.8(2)(a) applies for the charge and the infrastructure is land
owned by the applicant—whether land in fee simple may be given
instead of paying the charge or part of the charge.
(2) For development infrastructure that is land, the Local Government may give
the applicant a notice, in addition to, or instead of, the notice given under
Section 5.1.8, requiring the person to—
(a) give to the Local Government, in fee simple, part of the land the subject
of the development application; or,
(b) give to the Local Government, in fee simple, part of the land the subject
of the development application and an infrastructure charge.
(3) If the applicant is required to give land under Section (2)(a), or a combination
of land and a charge under Section (2)(b), the total value of the contribution
must not be more than the amount of charge mentioned in Section 5.1.8(1).
(4) The applicant must comply with the notice as soon as practicable.
(5) If Section (1) (d) or (2) applies the land is to be given to the Local Government
for public parks infrastructure or local community facilities, the land must be
given on trust.’
s5.1.12, IPA 1997
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Designating Community Infrastructure
Definition of ‘community infrastructure’ under the Integrated Planning Act:
Definition of Community Infrastructure
(1) The following are community infrastructure:
(a) aeronautical facilities;
(b) cemeteries and crematoriums;
(c) communication network facilities;
(d) community and cultural facilities, including childcare facilities, community
centres, meeting halls, galleries and libraries;
(e) correctional facilities;
(f)
educational facilities;
(g) emergency services facilities;
(h) hospitals and associated institutions;
(i)
jetties, wharves, port facilities and navigational facilities;
(j)
oil and gas pipelines;
(k) operating works under the Electricity Act 1994;
(l)
parks and recreational facilities;
(m) railway lines, stations and associated facilities;
(n) State-controlled roads;
(o) transport infrastructure mentioned in Section 5.1.1;
(p) water cycle management infrastructure;
(q) waste management facilities;
(r) storage and works depots and the like, including administrative facilities
associated with the provision or maintenance of the community
infrastructure mentioned in paragraphs (a) to (q);
(s) any other facilities not mentioned in paragraphs (a) to (r) and intended
primarily to accommodate government functions.
Schedule 5: Community Infrastructure, IPA 1997
Suggested Protocol for Designating Community Facilities
The protocol reads as follows:
(1)
This is an agreement between the [State Agency], Local Government
Association of Queensland (LGAQ)16 and Department of Local Government,
Planning, Sport and Recreation (DLGPSR).
Whereas all parties to this agreement are committed to a process for
designating [insert facility type] that:
(2.1) Improves the integration and co-ordination of [insert facility type] in a
local area;
(2.2) Provides a mechanism for greater information exchange when
allocating land for new [insert facility type].
(2)
(3)
[State Agency] commits to seek advice from DLGPSR on a case-by-case
basis to determine whether the process of designation is required and
appropriate.
[State Agency] supports the notion of holding informal discussions with the
appropriate Council/s prior to commencing the formal designation process. At
(4)
16
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In this protocol the LGAQ is a signatory of the Council’s listed in Schedule A.
Implementation Guideline No. 5—Social Infrastructure Planning
(5)
(6)
(7)
(8)
(9)
the pre-designation discussion:
(4.1) [State Agency] will provide all relevant and readily available
information regarding the educational use to be hosted upon the site.
(4.2) The appropriate Council/s will provide an indication, or notice of when
they will provide an indication, of whether they believe the educational
use to be hosted upon the site will give rise to any major
environmental effect/s.
(4.3) If the appropriate Council/s decides to give notice of when they will
provide an indication of major environmental effects, they commit to
indicate what they believe to be the likely environment effects due to
the community infrastructure, no later than 10 working days after the
pre-designation discussion.
If it is deemed by the local authority/ies that development of the educational
use will not cause any major environmental effects, the designation process
as set in Schedule 6 of the Integrated Planning Act (IPA) will be commenced.
If the local authority/ies deems that development of the educational use will
cause major environmental effects and both [State Agency] and the relevant
local authority/ies are agreeable on these issues, both parties will commence
discussions on appropriate mitigation measures.
If the parties cannot agree on appropriate mitigation measures, or if [State
Agency] is not agreeable to the relevant local authority’s assessment of major
environmental effects, [State Agency] will either:
(7.1) Complete the studies they consider necessary to determine what, if
any, mitigation measures would be appropriate; or
(7.2) Commence the designation process, clearly documenting all concerns
raised.
If the action stated in (7.1) was pursued, at the conclusion of the study/ies,
[State Agency] will either:
(8.1) Hold discussions with the relevant local authority/ies to determine
appropriate mitigation measures. Upon conclusion of the discussions,
the designation process as set in Schedule 6 of the IPA would
commence; or
(8.2) Commence the designation process as set in Schedule 6 of the IPA.
Concerns from all parties will be clearly documented and these, along
with all supporting information, will be submitted to the relevant
Minister for due consideration.
[State Agency], LGAQ and DLGPSR commit to reviewing the appropriateness
of the designated land at the time of the relevant planning scheme reviews.
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Implementation Guideline No. 5—Social Infrastructure Planning
Appendix 6: State and Local Government Participation in
Developing the Guidelines
Project steering committee
Office of Urban Management
Queensland Health
Department of Communities
Department of Emergency Services
Queensland Police
Queensland Treasury
Department Education, Training and the Arts
Planning Information Forecasting Unit, Department of Local Government, Planning,
Sport and Recreation
Department of Child Safety
Queensland Council of Social Services
Local Government Association of Queensland.
Stakeholder participation
The following agencies, local governments and organisations were consulted during
the development of these Guidelines.
Department of Communities
Department of Education, Training and the Arts
Department of Housing
Department of the Premier and Cabinet
Disability Services Queensland
Department of Emergency Services
Department of Justice and Attorney-General
Planning Information Forecasting Unit, Department of Local Government, Planning,
Sport and Recreation
Queensland Health
Queensland Corrective Services
Queensland Treasury
WESROC
Gold Coast City Council
Brisbane City Council
Logan City Council
Maroochy City Council
Ipswich City Council
Caboolture City Council
Caloundra City Council
Uniting Church Australia (Queensland Synod)
University of Queensland
Spiritus.
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