agenda of shire strategic planning committee - 30 00 20202020-11-23 · subsequent use, the park...

Business Paper

Shire Strategic Planning Committee

Monday, 30 November 2020

6:30pm

Council Chambers,

Level 2, Administration Building,

4-20 Eton Street, Sutherland

Shire Strategic Planning Committee 30 November 2020

ORDER OF BUSINESS

1. OPENING OF MEETING AND WEBCAST STATEMENT

2. ACKNOWLEDGEMENT OF COUNTRY

3. APOLOGIES

4. DISCLOSURES OF INTEREST

5. CONFIRMATION OF MINUTES OF THE PREVIOUS MEETINGS

6. PRESENTATIONS

7. REPORTS FROM OFFICERS

PLN051-20 SSLEP2015 Refresh Planning Proposal (pg 3)

PLN052-20 Local Housing Strategy Stage 1 - Refresh of Housing Strategy 2014 (pg 11)

8. QUESTIONS OF WHICH NOTICE HAS BEEN GIVEN

9. CONSIDERATION OF BUSINESS IN CLOSED SESSION

10. CONFIDENTIAL REPORTS FROM OFFICERS


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PLN051-20 SSLEP2015 REFRESH PLANNING PROPOSAL

Attachments: Appendix A (under separate cover)⇨ and Appendix B⇩

EXECUTIVE SUMMARY

Council is adopting a two stage approach to meet the requirement to update Sutherland Shire

Local Environmental Plan 2015 (SSLEP2015) to align with the Local Strategic Planning

Statement, the South District Plan and the broader strategic planning framework of Greater

Sydney and the State Government.

Stage 1 (a ‘refresh’ of SSLEP2015) is to include actions to give effect to the Green Grid and

align with plans for the ANSTO campus, and includes a minor changes to improve the operation

of SSLEP2015. It also includes recent decisions that require amendments to the LEP.

Major planning matters requiring strategic policy decisions such as housing, employment and

centre precinct plans will be included in Stage 2.

The Sutherland Shire Local Planning Panel has supported the draft Planning Proposal and have

provided comments in relation to other potential changes which can be considered in the

housing strategy, as part of the comprehensive LEP review, or as future DCP provisions .

REPORT RECOMMENDATION

THAT:

1. The report, including the SSLEP2015 Refresh Planning Proposal (Attachment A) and the

advice of the Sutherland Shire Local Planning Panel (Attachment B), be received and noted.

2. The SSLEP2015 Refresh Planning Proposal be referred to the Department of Planning,

Industry and Environment for a Gateway Determination, seeking delegation to make the

plan.

3. The Chief Executive Officer be given delegated authority to make any amendments that are

required by the Gateway Determination before the draft planning proposal is exhibited.

4. Subject to a positive Gateway Determination, the Planning Proposal be publicly exhibited in

accordance with the conditions of the Gateway Determination and Council’s engagement

policies.

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PURPOSE

The purpose of this report is to amend the Sutherland Shire Local Environmental Plan 2015

(SSLEP2015) to better align it with the Local Strategic Planning Statement (LSPS) and address minor,

uncontroversial planning matters.

BACKGROUND

Sutherland Shire Council’s LSPS sets out its 20 year vision for how the local planning framework will

respond to the priorities set in the Community Strategic Plan and the South District Plan. The South

District Plan requires that Council update the Local Environment Plan (LEP) to reflect the LSPS and

the rest of the Strategic Planning Framework by June 2021. At its meeting of 9 December 2019

Council resolved (PLN039-19) to pursue a two stage approach to updating the LEP. This report

provides Council with the mechanism to commence Stage One.

DISCUSSION

The Planning Proposal has been drafted to address the following planning issues:

Zoning of ANSTO Campus

The ANSTO Precinct is identified in the South District Plan and the Sutherland Shire Local Strategic

Planning Statement as an Innovation Precinct. This reflects the intention of ANSTO to develop a

research and innovation precinct, a graduate institute, and technology park. To reflect the intent of the

ANSTO Collaboration Area the SP1 Special Activities zoning of the campus will be retained, but the

specific purpose is proposed to be amended from “Research and Technology’ to ‘Innovation Precinct’.

This simply broadens permissible uses in line with the recently adopted ANSTO Place Based Strategy.

Give Statutory Effect to the Sutherland Shire Green Grid

Sutherland Shire’s Green Grid (PLN012-19) is a long term vision for the area to facilitate a co-

ordinated network of high quality green spaces, tree-lined streets and pathways. Council’s LSPS at

Action 19.1 requires Council to “incorporate Green Grid into LEP and DCP provisions”. Including a

Green Grid local provision in the LEP will ensure that landscaping and frontage works will contribute to

retaining and enhancing canopy cover and facilitating and prioritising pedestrian and cycle links. The

clause will not stop development. It will simply empower Assessment Officers to achieve outcomes

along key movement corridors.

Improve Water Quality by Applying the Stormwater Controls in Clause 6.4 to all Zones

Council’s LSPS states that Clause 6.4 of the SSLEP2015 will be amended to expand its application to

all relevant zones in the LGA. The application of the clause to all zones will ensure that development

will ensure more developments must take measures to protect the water quality and health of the

Shire’s waterways and beaches. This amendment was requested by Sydney Water.

https://www.sutherlandshire.nsw.gov.au/files/sharedassets/website/document-library/governance/council-meetings/2019-12-09-council-minutes.pdf

https://www.sutherlandshire.nsw.gov.au/files/sharedassets/website/document-library/governance/council-meetings/2019-05-06-pln-business-paper.pdf


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Retain more Vegetation in the E4 Zone through Changes to Complying Development

SSLEP2015’s complying development provisions allow dwelling houses and ancillary development in

the E4 Environmental Living zone. Vegetation can be removed under these provisions where it is

within 3m of the development, or less than 6m high. The clause was originally drafted “and” rather

than “or”. As currently drafted the provisions allow clearing of minor vegetation anywhere on the site

whether it is relevant to the proposed development or not. The current provisions also facilitate

removal of large canopy trees without assessment by Council. Council’s intent was that only minor

vegetation close to the footprint of the development would be removed. Any other tree or vegetation

could be removed only with a separate permit which would allow Council’s tree management officers

to make an expert assessment. It is therefore proposed to correct the drafting of this provision to

achieve Council’s original intent.

Add Exemptions to Subdivision Clauses to Facilitate Closing Roads Under the Roads Act

1993

Clauses 4.1 and 4.1A apply minimum lot area and lot dimension requirements for subdivision and are

intended to prevent land fragmentation, preserve the character of suburban areas and achieve

planned residential densities. However, these clauses can also prohibit the subdivision of land for the

closure of roads. The planning proposal provides exemptions to clauses 4.1 and 4.1A of SSLEP2015

that will facilitate subdivisions associated with the closure of a road.

Remove Clause 4.1C – Minimum Lot Sizes for Land Containing Secondary Dwellings

Clause 4.1C, duplicates the effect of clause 2.6(2) which is a mandatory provision of the Standard

Instrument Local Environmental Plan. Removal of clause 4.1C is will reduce the complexity of

SSLEP2015 without affecting development outcomes.

Add Objectives to Clause 4.1E to better Describe Council’s Intent

Clause 4.1E sets the minimum lot sizes for dual occupancies and multi dwelling housing in the R2 Low

Density Residential zone. Land and Environment Court cases have highlighted the importance of

objectives in interpreting clauses. The current objective in this clause does not fully describe Council’s

intent so the following object is proposed to be added to Clause 4.1E “(b) To maintain the character of

the streetscape created by low density development within a landscaped context.”

Remove Flood Planning Mapping from SSLEP2015

Council has adopted a number of Flood Risk Management Policies and Flood Hazard Maps for the

catchments of the Sutherland Shire. The maps are under constant review and amendments are made

when new information is available. As a result the Flood Hazard Map more accurately reflects the

flood planning level than the ‘Flood Planning Map’ contained in SSLEP2015. The statutory process

associated with LEP amendments are such that it cannot be updated quickly enough. Removing the

flood maps from the LEP will ensure the most up to date flood mapping is used.


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Remove Clause 6.10 and Associated Mapping in Response to SEPP (Coastal Management)

2018

The NSW Government introduced the Coastal Management Act 2016 and accompanying SEPP

(Coastal Management) 2018 to replace the previous Coastal Protection Act 1979 and SEPP 71. The

new coastal zone applies to all major waterways and foreshores of the Sutherland Shire, including all

of the foreshore affected by clause 6.10 of the SSLEP2015. Given the SEPP and Act apply, clause

6.10 and associated mapping is superfluous and should be deleted.

Rezone Land to Facilitate a Land Swap Agreement at Geebung Lane in Engadine

On 15 October 2018, Council resolved (SER033-18) to enter in to a draft Voluntary Planning

Agreement (VPA) with Engadine Tavern Project Pty Ltd to exchange a portion of Council owned road

on Geebung Lane for a portion of land at 5 Preston Avenue. To reflect this change in ownership and

subsequent use, the park extension (5 Preston Avenue - Lot 6 DP 232490) will be rezoned from B3

Commercial Core to RE1 Pubic Recreation with removal of development standards. The road closure

portion will retain the B3 commercial core zoning, but have development standards consistent with the

adjoining land.

Minimum Lot Size Requirement for Boarding House Developments

Boarding Houses are a type of residential accommodation which is a permissible use in zones R2, R3,

R4, B1, B2, B3, B4 and SP3. Boarding houses may resemble a dwelling house, townhouses, shop top

housing or an apartment building depending upon the zone and site. Recent development applications

have shown that proposed boarding houses are rarely compatible with existing local character on

small lots. Consequently the planning proposal will introduce a minimum lot size of 800m2 for the

development of Boarding Houses (as per Council Minute No. 302, PLN037-19).

http://www.sutherlandshire.nsw.gov.au/files/sharedassets/website/document-library/governance/council-meetings/2018-10-15-council-minutes.pdf


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Add a Savings Clause for Applications Lodged but Not Determined

The planning proposal includes a savings provision to ensure that any development application lodged

prior to the commencement of these changes is not affected by them.

Rezoning to Recognise a new Council Reserve at 168 Oak Road, Kirrawee.

The planning proposal includes zone and development standards changes to reflect the acquisition of

168 Oak Road, Kirrawee (Lot 33 in DP 590492) for a new public reserve. The property is currently

zoned R2 Low Density Residential and this will be changed to RE1 Public Recreation in recognition of

its intended purpose, along with other consequential changes to the mapping of the site to align the

development controls applicable to the site with the development controls applicable to land zoned

RE1 Public Recreation.

Amend Clause 5.6 Architectural Roof Features to Limit the Clause to Specified Prescribed

Zones.

Clause 5.6 is based on an optional model clause designed to encourage architectural diversity and

interest in buildings by providing flexibility in the height limits imposed on buildings in specified higher

density zones (R4, B2, B3, B5, B6, IN1, IN2 & IN3). In SSLEP2015, the drafting of the clause does not

limit it to the intended prescribed zones. It is also noted that the B4 Mixed Use zone is not included the

list of prescribed zones despite also being a higher density zone. Consequently amendments to this

clause are sought to only apply it to the prescribed zones only and add B4 mixed use as a prescribed

zone.

Correct a Zoning Anomaly on a Portion of the Former Church Site at 1R Waterfall Road,

Heathcote.

The property at 1 Rosebery Street, Heathcote commenced use as a church in the 1980s. In 2000 the

church extended their carpark through the purchase of a small (44m2) portion of adjacent land to the

rear of the property (Lot 10 DP 1014211) which has the separate address 1R Waterfall Road,

Heathcote. At the introduction of SSLEP2015 the zone of this lot was transferred to E2 Environmental

Conservation, but the rest of the former church site was zoned R2 Low Density Residential. It is

therefore proposed that the zoning anomaly be corrected by changing the zone and other mapping of

Lot 10 DP 1014211 to be consistent with the rest of the former church site.

Clarify Clause 6.9 to Ensure Rebuilt Dwellings must not Extend further into the Foreshore Area.

Clause 6.9 of SSLEP2015 limits development in the foreshore area to protect the natural and

aesthetic qualities of this area. The clause recognises that in the past some homes were constructed

on the foreshore and provides exceptions to allow them to be rebuilt, altered and extended. The

current drafting of the clause is problematic because it specifically limits the expansion of dwellings in

the foreshore area by extension or alteration, but does not limit the expansion of these dwellings when

they are rebuilt. The clause will be amended to correct this inconsistency.


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Local Planning Panel Advice

Planning Proposals are required to be referred to the Local Planning Panel for Advice. The Sutherland

Shire Local Planning Panel considered this matter on 3 November finding that the Planning Proposal

has sufficient strategic merit to warrant referral to the Minister for Planning for a Gateway

Determination under Section 3.34 of the Environmental Planning and Assessment Act 1979.

The Panel also took the opportunity to provide more general advice to Council. In relation to the

zoning of ANSTO, the Panel questioned whether the Special Use zone would make it more difficult to

ascertain permissible land uses. However, it also acknowledged that this is largely academic given the

ANSTO exemption from State land use restrictions. As the future land uses on the site will not be

decisions for Council and will be guided by the ANSTO Place Based Strategy. As such the Special

Use zone is an appropriate classification.

The Panel supported the introduction of a minimum lot size for boarding houses and suggested that

Council should consider a minimum lot size for residential flat buildings. This is valuable advice that

should be explored as part of the next comprehensive Housing Strategy.

The Panel found merit in clarifying aspects of rebuilding in the foreshore area and suggested that

consideration be given to also controlling volumetric bulk in the foreshore area. This advice is best

considered as part of Council’s next comprehensive review of the LEP.

The Panel supported the removal of flood mapping form the LEP, but stressed the need for this

information to be readily available. This will be achieved through up to date flooding maps on

Council’s website.

The Panel’s full advice can be read in Attachment B.

RESOURCING STRATEGY IMPLICATIONS

Management of Council’s LEP is conducted within the existing budget and resources of the Strategic

Planning Unit.

COMMUNITY ENGAGEMENT

No community engagement has yet been undertaken. Council cannot formally exhibit the planning

proposal until it receives a Gateway Determination which will also provide the minimum requirements

for the exhibition. Community engagement is expected to include:

Public exhibition of the planning proposal on Council’s Join the Conversation website for 28

days with the opportunity for members of the public to prepare submissions in response.

Publication of an advertisement in a local newspaper prior to the exhibition commencing.

Exhibition of the planning proposal and supporting documentation at the Sutherland Shire

Council Administration Building.


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Notification letters will be distributed to the owner and neighbours of each property that is

affected by a property specific mapping or heritage change.

STRATEGIC ALIGNMENT

This report contributes to the delivery of Our Community Plan - Outcome 6 “A liveable place with a

high quality of life”. It specifically delivers on the following:

Delivery Program (2017-2022) Deliverables Operational Plan 2020/21

6B Manage new and existing development

within a robust and effective framework

6B.21.05 Local Environmental Plan Review

submitted to Gateway

POLICY AND LEGISLATIVE REQUIREMENTS

The Environmental Planning and Assessment Act requires Council to submit all Planning Proposals

for a Gateway Determination before placing them on public exhibition. A Ministerial Direction requires

that Local Planning Panels must provide advice to Council on the merits of a Planning Proposal before

a decision is made as to whether it is to be submitted for Gateway Determination. In this case the

Local Planning Panel has provided positive advice.

CONCLUSION

The purpose of this Planning Proposal is to amend the Sutherland Shire Local Environmental Plan

2015 to better align it with policy directions set by the Sutherland Shire Local Strategic Planning

Statement. The opportunity has also been taken to make other minor amendments to address

outstanding issues or improve the workings of the plan.

The changes contained in the Planning Proposal have strategic merit because they address

shortcomings or anomalies within the LEP, better align the LEP with the LSPS, or make changes that

will delivered improved local planning outcomes.

RESPONSIBLE MANAGER

The manager responsible for the preparation of this Report is the Manager of Strategic Planning, Mark

Carlon.

File Number: 2020/365616


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PLN052-20 LOCAL HOUSING STRATEGY STAGE 1 - REFRESH OF HOUSING

STRATEGY 2014

Attachments: Appendix A (under separate cover)⇨

EXECUTIVE SUMMARY

Stage 1 in the preparation of a Local Housing Strategy to meet the requirements of the South

District Plan, and fulfil an action of the Local Strategic Planning Statement, is a ‘refresh’ of

Council’s adopted Housing Strategy 2014.

The general policy framework and actions in the Housing Strategy respond to our ageing

population and trends towards more compact dwellings. Only minor amendments are proposed.

Updates to the current Housing Strategy document are required to:

o update population statistics;

o reflect the significant residential development that has occurred since June 2015,

highlighting that the 5-year housing target is anticipated to be comfortably met;

o summarise the forecast housing supply pipeline for the next five years and the significant

remaining residential capacity under Sutherland Shire Local Environmental Plan 2015;

and

o highlight the projected take-up of the remaining R4 zoned land.

The Greater Sydney Commission has recommended that the update to Housing Strategy 2014

is submitted to the Department of Planning, Industry and Environment for endorsement in

recognition of the strategic planning work Council has already undertaken on housing.

Council is well placed to commence Stage 2. This is the preparation of a new Local Housing

Strategy in the template format set out in the Local Housing Strategy Guideline issued by the

Department of Planning, Industry and Environment.

A Councillor briefing is scheduled for the 23 November 2020, to provide more detail.

REPORT RECOMMENDATION

THAT:

1. The report Local Housing Strategy Stage 1 – Refresh of Housing Strategy 2014 be received

and noted.

2. The draft Housing Strategy 2020 attached as Appendix 1 be adopted by Council.

3. Council seek endorsement of the Housing Strategy 2020 by the Department of Planning,

Industry and Environment.

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PURPOSE

This report seeks Council’s endorsement of the draft Housing Strategy 2020. This is the ‘refresh’ of

the current adopted Housing Strategy 2014, and Stage 1 in the preparation of a new Housing Local

Strategy.

BACKGROUND

The State Government has recently released a discussion paper for the NSW Housing Strategy that

highlights the need for another one million dwellings in Greater Sydney by 2040. Clearly all areas of

Sydney, including Sutherland Shire, will continue to grow and change. Council has a statutory

responsibility to plan for growth and change in its area to give effect to the Region and District Plans.

The Sutherland Shire Local Strategic Planning Statement (LSPS) gives effect to the South District

Plan and the Sydney Region Plan – A Metropolis of Three Cities to inform the next generation Local

Environmental Plan (LEP). LSPS Action 10.1 requires the preparation of a new Local Housing

Strategy. The Department of Planning, Industry and Environment has issued a Local Housing Strategy

Guideline, which provides a template format for Local Housing Strategies. All councils within Greater

Sydney are required to follow the structure set out in within the template.

Council is preparing the Local Housing Strategy in two phases. The first phase is a ‘refresh’ of the

adopted Housing Strategy 2014. It includes a high level review of the objectives and actions in the

current Housing Strategy and identification of number, status and location of housing approved and/or

delivered under the current Housing Strategy and since the making of SSLEP2015. It also provides an

indication of the housing pipeline for the next five years, overall capacity for residential development

and highlights some of the key considerations for Stage 2.

The second phase, preparation of a new Local Housing Strategy, will focus on planning for housing for

the 10-20 year time period (looking to 2036). This will inform the comprehensive review of Sutherland

Shire’s LEP, scheduled for 2022. This work is required now as planning has a time lag of six-seven

years between initial decisions to change the planning framework and the delivery of completed

development. This document will need to adopt the template format for Local Housing Strategies.

DISCUSSION

Review of Housing Strategy 2014

Sutherland Shire’s current Housing Strategy was adopted in 2014. The strategy sets out objectives for

housing which respond to identified demographic trends. The draft refreshed document includes

updated population data from Census 2016. The current Strategy identified actions and locations for

change to create new capacity for housing to meet the needs of the current and future population.

Many of these actions were implemented through changes to zoning and development standards in

Sutherland Shire Local Environmental Plan 2015 (SSLEP2015).


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Objectives that Underline Housing Strategy 2014

The Housing Strategy sets out eight objectives:

1. To meet the current and future needs of an ageing population.

2. To deliver Council’s Ageing Well Strategy.

3. To meet the current and future needs of smaller sized households.

4. To meet the community need for increased housing choice.

5. To encourage redevelopment to promote the revitalisation of centres.

6. To facilitate the use of public transport and the efficient utilisation of existing and future

infrastructure.

7. To retain the established development pattern of mostly low density housing in a landscape

setting with some higher density precincts close to centres.

8. To consider environmental constraints in nominating locations for additional housing.

The first four of these objectives relate to demographic trends, housing demand and housing supply.

Based on analysis of demographic trends and housing data, these objectives are still relevant as they

respond to anticipated housing needs of an ageing population and increasing numbers of smaller

households.

The remaining four objectives align with Planning Priorities contained in the Local Strategic Planning

Statement and should be retained.

Actions to Create Additional Housing Capacity and Deliver Housing

The Housing Strategy sets out a number of actions which aim to result in more housing. The actions

can be summarised as:

Increasing opportunities for residential flats in or close to selected centres by rezoning precincts

or increasing the permissible height and floor space ratio.

Encouraging villa and townhouse development close to selected town centres by rezoning

precincts, or removing the minimum lot size requirement.

Encouraging villa development by permitting these on internal lots and in accessible locations

by offering a floor space ratio (FSR) bonus.

Removing restrictions on single storey dual occupancies being located on internal lots.

Increasing the required proportion of adaptable dwellings in multi-unit developments.

Encouraging the development of ground floor flats with features which appeal to older people.

Many of these were delivered through Sutherland Shire Local Environmental Plan 2015, with the last

two actions being delivered through controls in Development Control Plan 2016.

Since the Housing Strategy was adopted, the SSLEP2015 has been amended to reintroduce minimum

lot sizes for multi-unit development (villas and townhouses). This was done to address poor outcomes

in multi-unit development on small lots. The draft Housing Strategy update deletes Action 5 “Villa and

townhouse development is encouraged on remaining undeveloped sites close to centres by the

removal of the minimum lot size requirement” to align with SSLEP2015 as amended.


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Housing Delivery in the Identified Precincts

The Housing Strategy identified 39 precincts for increased housing delivery. Changes to the zone

and/or FSR and height in these precincts were made in SSLEP2015. Significant residential

development has occurred in some precincts since SSLEP2015 came into effect. The most successful

precincts are on the edges of Sutherland, Miranda and Jannali centres where there was significant

uplift associated with the R4 zoning. In contrast, there has been very little development in the

precincts located within business zones. There is still capacity for more residential capacity in most of

the identified precincts. Details for each precinct are included in the attached draft Housing Strategy

Update.

Additional Information to include in the Housing Strategy Update

Since the Housing Strategy was prepared, the South District Plan has set a five-year housing target

and specific requirements associated with the preparation of a Local Housing Strategy. The guideline

for preparing a Local Housing Strategy also sets out specific matters to be considered. The

information below summarises the available information and analysis for some of these topics. A more

detailed discussion is provided in the draft Housing Strategy Update attached as Appendix 1.

Housing Approvals and Delivery - Five Year Housing Target

There has been significant residential development since June 2015. This includes the single

dwellings at Greenhills Beach and Shearwater Landing at North Cronulla, the South Village Kirrawee

and Woolooware Bay developments, residential flat buildings around centres and the rapid

replacement of older dwellings on large lots with townhouses and dual occupancies. As a result,

Council is expected to comfortably meet the five-year target of 5,200 additional dwelling completions

between July 2016 and June 2021, which was set in the South District Plan. This is illustrated in the

graph below.


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Housing Supply Pipeline

The future housing supply pipeline comprises projects already under construction, projects which are

already approved and are yet to commence construction, and projects for which development consent

is currently being sought. The final element of future housing supply is the take-up of remaining

development potential.

As there are limited greenfield sites in Sutherland Shire, future housing supply will be infill

development – largely redevelopment of existing sites. At the end of June 2020, there were

approximately 1,200 residential apartments and 190 multi-dwelling dwellings under construction in

Sutherland Shire. The majority of these are anticipated to be completed by mid-2023. Only two new

greenfield subdivisions – Monash Road/Anderson Place and Ridgeway Estate - are expected to be

fully developed within the next five years.

At the end of June 2020, there was development approval for approximately 1,200 residential

apartments and 475 multi-dwelling dwellings where construction had not commenced. The approvals

are for smaller developments with fewer dwellings per project. The impact of the COVID-19 pandemic

on housing commencements is not yet known, but may delay some commencements or result in some

projects not proceeding.

Dual occupancy development and secondary dwellings have yielded additional residential dwellings

within Sutherland Shire and the trends in these housing forms are expected to continue.

Review of trends in the number of development approvals for new residential development lodged with

Council indicates that approvals peaked in FY2016/2017. Since this time, the number of development

applications has been decreasing and it is anticipated that this trend will continue.

Based on current knowledge, a future housing supply pipeline over the next five years in Sutherland

Shire has been forecast and is illustrated below. Development is anticipated to continue to be focused

on the eastern parts of Sutherland Shire. More limited residential development is anticipated in the

western parts of Sutherland Shire due to bush fire risk, more limited public transport services and the

age of the existing housing stock.


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Image Source: Housing Completions – DPIE Sydney Housing Monitor (data correct at end Q2 2020);

Approvals – Sutherland Shire Council (prepared using 30 June 2020 data)

The South District Plan requires a housing target to be agreed between Council and the Greater

Sydney Commission for the 6-10 year time period (FY2021/22 – FY2025/26). In December 2019,

Council resolved to ‘base its 6-10 year housing supply target on delivering 3,800 dwellings’ in this

period. As part of Stage 2 - the Local Housing Strategy, Council will work with the Greater Sydney

Commission to get final agreement on the 6-10 year housing target.

Capacity of Existing Land Use Controls

There is significant remaining residential capacity under SSLEP2015, despite the recent high levels of

residential development in recent times, and the anticipated housing delivery in the next five years. It

is estimated that there is still capacity of more than 28,000 dwellings on land where residential

development is permissible. The greatest dwelling capacity is in the R2 Low Density Residential zone,

as this zone can accommodate dual occupancy and multi-dwelling developments. Although there is

capacity remaining in the R4 zone, this capacity is forecast to be exhausted by June 2031.

The business zones also have significant dwelling capacity for residential flats as part of a mixed use

development. However, there has not been strong take-up of the potential in these zones as the high

underlying land value in the centres makes redevelopment unfeasible.

Remaining capacity for development in centres and the immediate surrounding high density zones is

greatest in Caringbah, Sutherland-Kirrawee and Miranda.

Development Timeframes and Lags

The high level of recent dwelling completions reflects the rezoning of land under SSLEP2015. This

was the outcome of work commenced in 2012 to inform the preparation of the current Housing

Strategy. These timeframes are consistent with the industry benchmark lag of six-seven years for the

realisation of large residential projects.

The forecast indicates that capacity in all R4 High Density zones will be exhausted by 2031. This

highlights the need to find new opportunities for the location of high density residential development.

This needs to be done in advance of capacity being exhausted as it is unlikely that all land currently

zoned R4 will be developed. Without a planning response, the supply of new high density residential

dwellings is likely to dwindle or even cease before 2031. To ensure an on-going housing supply

pipeline of smaller and conveniently located dwellings, it is prudent to start identifying new

opportunities for R4 land as part of the new Local Housing Strategy.


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Engagement with the Greater Sydney Commission and NSW Department of Planning, Industry

and Environment

Council officers have met with the representatives of the Housing Teams at Greater Sydney

Commission and the NSW Department of Planning, Industry and Environment to provide updates on

local housing trends, including completions, approvals and tracking against the adopted Housing

Strategy. Discussion with the Greater Sydney Commission also addressed the two-stage process for

preparing a Local Housing Strategy which was supported. In recognition of the strategic planning

already undertaken, Council was advised to submit the Housing Strategy Update 2020 document to

the Department of Planning, Industry and Environment for endorsement.

Next Steps

The second stage – preparation of a new Local Housing Strategy – will focus on setting the direction

for housing for the period 2026 to 2036, responding to the anticipated community profile and

associated housing demands. It will identify housing supply gaps, identify opportunities and

constraints to new housing, identify areas for future housing delivery and describe the mechanisms to

deliver housing. The mechanisms for delivery may include changes to the planning framework and/or

other approaches e.g. working with community housing providers. This will in part be informed be the

precinct planning for Sutherland-Kirrawee, Miranda and Caringbah Centres.

The Local Housing Strategy is required, for the first time, to consider feasibility. The guidelines require

to Council to ensure that the proposals will ‘allow for sufficient housing development that is financially

feasible’. Development only occurs if it is permitted under planning controls and financially feasible.

RESOURCING STRATEGY IMPLICATIONS

The Housing Strategy Update has been undertaken using existing budget allocations for the Strategic

Planning Unit.

COMMUNITY ENGAGEMENT

The current Housing Strategy was subject to extensive community consultation as part of the making

of Sutherland Shire Local Environmental Plan 2015. Residents were notified of both the new plan and

the Housing Strategy, which were publicly exhibited three times, and subject to an Independent

Review. This is a refresh of the existing Housing Strategy. It seeks to update population statistics and

reflect the significant residential development that has occurred since June 2015. The refresh also

notes the remaining capacity of residential zoned land, and forecasts the housing supply pipeline for

the next five years. This review does not change the current Housing Strategy policy.

The preparation of a new Local Housing Strategy (Stage 2), will focus on planning for housing for the

10-20 year time period (looking to 2036). This will inform the comprehensive review of Sutherland

Shire’s LEP, and is scheduled for 2022. Extensive community consultation will be undertaken as part

of this new strategy.


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STRATEGIC ALIGNMENT

This report contributes to the delivery of Our Community Plan - Outcome 6 “A Liveable Place With A

High Quality Of Life”. It specifically delivers on the following:

Delivery Program (2017-2022) Deliverables Operational Plan 2020/21

6C. Support enhanced housing diversity,

accessibility and affordability to meet the diverse

needs of the community.

6C.21.01 Develop Stage 2 of the Housing

Strategy 2036.

POLICY AND LEGISLATIVE REQUIREMENTS

Section 3.8 (3) of the Environmental Planning and Assessment Act 1979 requires Council to review its

LEP as soon as practical following the release of a new District Plan and report its progress to the

Greater Sydney Commission. Section 3.21 (2) requires Council to review its LEP every five years. The

Greater Sydney Commission has previously advised Council that it must carry out a comprehensive

review of its LEP by 2022 which gives effect to its LSPS. The preparation of the Local Housing

Strategy is part of this process.

The Local Housing Strategy will be required to be prepared in the template structure as set out in the

Local Housing Strategy Guideline prepared by the Department of Planning, Industry and the

Environment in 2018. The Local Housing Strategy must be endorsed by Department of Planning,

Industry and Environment.

CONCLUSION

The adopted Housing Strategy has facilitated in significant residential development over the past five

years, facilitating a variety of compact housing forms that correspond with the needs of ageing

population and a desire for more compact homes. There is a strong supply pipeline in place for the

next five years, without the need for immediate change to SSLEP2015 to facilitate more homes. There

remains significant capacity for residential dwellings under the current LEP controls.

Based on the strategic work undertaken in preparing the adopted Housing Strategy, Council is well

placed to prepare a new Local Housing Strategy 2036. The new Local Housing Strategy will need to

respond to issues identified during this review, including the forecast exhaustion of land zoned R4

High Density Residential by 2031. It will also need to demonstrate that housing development is

feasible under the planning controls.

RESPONSIBLE MANAGER

The manager responsible for the preparation of this Report is the Manager Strategic Planning, Mark

Carlon.

File Number: 2020/367171

agenda of shire strategic planning committee - 30 00 20202020-11-23 · subsequent use, the park...

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