katherine - nt.gov.au · katherine has a wealth of history. centred within a prosperous pastoral...

KATHERINE

PLANNING CONCEPTS

and

LAND USE OBJECTIVES

2001

Minister’s MessageIn developing as the Northern Territory’s third largest town,

Katherine has a wealth of history. Centred within a prosperous

pastoral region, with promising horticultural activity,

prospective mining, strong and growing tourism, rich

indigenous history and culture, defence infrastructure and the

imminent construction of the railway, the future of the town is

assured.

With much to look forward to and at the commencement of

the new century, it is timely that Government bring forward its

planning policies for the coming years. This is the culmination

of a lengthy process of public consultation and debate,

unfortunately interrupted by the 1998 floods and subsequent

investigations of the extent of land prone to flooding.

Also bearing on the development of these policies was the introduction in April 2000 of the new

Planning Act which established the Northern Territory Planning Scheme. At present the Scheme

is a compendium of the existing Town Plans (and other material) across the Territory which,

over time will be rationalised into a single integrated document.

The Katherine Planning Concepts and Land Use Objectives provides the framework for the

further development of Katherine. I look forward to the continuing community involvement in the

development of the planning policies for this growing and vibrant town.

Tim Baldwin

Minister for Lands, Planning and Environment

Katherine Planning Concepts and Land Use Objectives i

TABLE OF CONTENTS

1. BACKGROUND................................................................................................................11.1. INTRODUCTION ....................................................................................................................11.2. BACKGROUND .....................................................................................................................11.3. POPULATION AND GROWTH..................................................................................................11.3.1. Population Structure..........................................................................................................11.3.2. Growth Prospects..............................................................................................................2

2. EVALUATION AND PLANNING CONTEXT ....................................................................42.1. TOWN CENTRE....................................................................................................................42.2. TOWNSCAPE AND URBAN DESIGN ........................................................................................52.3. RESIDENTIAL - URBAN .........................................................................................................62.4. AGRICULTURE AND RURAL AREAS ........................................................................................72.5. TRANSPORT AND MOBILITY ..................................................................................................72.6. INDUSTRY ...........................................................................................................................82.7. INFRASTRUCTURE AND COMMUNITY FACILITIES .....................................................................92.8. TOURISM ............................................................................................................................92.9. OPEN SPACE – RECREATION AND CONSERVATION ..............................................................102.10. ENVIRONMENT AND CONSERVATION ...................................................................................11

3. LAND USE OBJECTIVES ..............................................................................................113.1. SCOPE..............................................................................................................................113.2. KATHERINE PLANNING CONCEPTS ......................................................................................123.3. INTENDED OUTCOMES .......................................................................................................123.4. LAND USE OBJECTIVES......................................................................................................123.5. SPECIFIC LAND USE OBJECTIVES .......................................................................................133.5.1. Urban Structure and Design............................................................................................133.5.2. Culture and Lifestyle .......................................................................................................143.5.3. Environment and Conservation.......................................................................................143.5.4. Transport and Infrastructure ...........................................................................................16

LIST OF FIGURESFigure 1A: Katherine Land Tenure – Policy Area

Figure 1B: Katherine Land Tenure – Core Area

Figure 1C: Katherine Land Tenure – Town Centre Area

Figure 2A: Katherine Planning Concepts – Policy Area

Figure 2B: Katherine Planning Concepts – Core Area

Figure 2C: Katherine Planning Concepts – Town Centre Area

Katherine Planning Concepts and Land Use Objectives 1

1. BACKGROUND

1.1. INTRODUCTION

The role of Katherine as a major regionalcentre is well recognised. The KatherineLand Use Structure Plan 1991 established aframework for development of the town andits immediate rural area. It reaffirmed theregional function of Katherine as a servicecentre for outlying communities and thepastoral industry, and its growingsignificance as an urban and tourist centre.

A review of the Katherine Land UseStructure Plan 1991 has been undertakento facilitate the preparation of land useobjectives under the Planning Act. Thereview takes into account prospects for thegrowth and development of Katherine,current land use issues and provides anopportunity for community participation inthe development of appropriate land usepolicy. Figure 1A indicates the extent of thearea covered by this document, whichincludes lands within the Katherine TownPlan and the Katherine Rural Area Plan,and shows current land tenure andownership data.

1.2. BACKGROUND

For background information on the regionalplanning base, reference should be made tothe appropriate sections of the KatherineLand Use Structure Plan 1991, including thegeographic and socio-economic factors anddevelopment constraints.

A number of changed conditions and newissues were identified during the review ofthe Katherine Land Use Structure Plan1991, in recent studies, and during publicconsultation. These provided the basis forthe land use pattern outlined in the land usestructure plan, and are dealt with in thisdocument. They include:

� revitalisation of the Town Centre, inparticular the physical improvements,commercial performance andcommunity participation initiated underthe MainStreet program and continuedunder the Urban Enhancement programand the Katherine Terrace Master Plan;

� promotion of tourism opportunities andthe provision of new and improvedfacilities and attractions;

� location of the railway and futurehighway bypass to the south of thetown;

� greater appreciation of the recreationaland tourist potential of the KatherineRiver and careful management toprotect the conservation values of theriver corridor;

� greater appreciation of the landscapeand environmental values of Katherineand promotion of sensitive andsustainable approaches to developmentin the rural and urban areas;

� the need for improved urban livingconditions for Aboriginal people;

� the need for improved neighbourhoodplanning and design in future urbanresidential areas at Katherine East toprovide better access to local services;and

� greater appreciation of the potentialimpact of large volume flood events.

1.3. POPULATION AND GROWTH

The total population of Katherine, recordedat the 1996 Census, was 10 809 persons.This included 8 932 residents and 1 877visitors. The estimated resident populationpublished by the Australian Bureau ofStatistics (ABS) for 1999 was 9 933persons.

It is difficult to establish an accurateaverage growth rate for Katherine based onhistorical trends, due to statistical boundarychanges in 1987 and the wide variation inannual growth rates. It is apparent however,that fluctuations in population numbers andthe higher growth rates associated with theconstruction of Tindal RAAF Base in thelate 1980s have since moderated. Currentlythere are no plans for a significantlyincreased defence presence in theKatherine area.

For the purposes of this document, apopulation horizon of 20,000 (rather than atime horizon) has been selected as thebasis for estimating future land use andinfrastructure requirements.

1.3.1. Population Structure

The age and household characteristics ofKatherine’s population did not change

Katherine Planning Concepts and Land Use Objectives2

significantly between 1991 and 1996. Keycharacteristics include:

� a relatively young population (75% ofthe population is less than 40 years);

� a high proportion of large families andhousehold sizes; and

� a high proportion of Aboriginal people(15%).

Estimates of the number of Aboriginalpersons residing in dedicated urban livingareas were compiled as part of a study onliving areas in Katherine. For the purposesof that study, a 1991 base population of 738persons (exclusive of visitors) and annualgrowth rates of 2.3-2.7% were adopted.This would increase the Aboriginalpopulation by up to 300 persons by the year2004, and by a further 700 persons by theyear 2025.

1.3.2. Growth Prospects

The industries providing the bulk ofemployment opportunities in Katherine areconstruction, retail, education, communityservices, public administration and defence.Between 1986 and 1991, the constructionsector declined from 22.2% to 5.1% as aproportion of total employment, reflectingthe completion of major capital worksassociated with the Tindal RAAF Base.Over the same period, government anddefence employment increased from 10.4%to 25.3%. In 1996, government and defenceemployment was at 21.9%. Mining showeda major resurgence between 1991 and1996 with a fourfold increase in thenumbers of people employed in this sector.This was due in part to the reopening of theMt Todd Mine which has since ceasedoperation. Health, education andconstruction also showed significant gainsbetween 1991 and 1996.

Tourism related activities including retail,accommodation and personal services arethe most likely source for future growth inlocal employment. The Northern TerritoryTourism Development Masterplan estimatesthat up to 25% of visitors to the NorthernTerritory travel to Katherine and stay in theKatherine Region. Regional visitor numbersfor 1998 were 236 000 persons increasingslightly from previous years despite thedisruption caused by the January 1998floods. The Regional Tourism DevelopmentPlan highlights the need to retain visitors for

longer stays through improved facilities andattractions. While these may generateadditional employment, such opportunitiesare generally seasonal and Katherinecompetes with other accommodationcentres such as Darwin for this market.

Horticultural activities provide seasonalemployment for mango pickers and theremay be long term prospects for furtheremployment generation with the impendingmaturity of recently planted orchards andthe establishment of new horticulturalenterprises.

Construction and related activity associatedwith Stage 3 of the Tindal RAAF Base wascompleted in 1995. No significant additionalbuilding and civil works are currentlyproposed for the project, although theDefence Housing Authority expects torequire an additional 20 dwelling inKatherine in the next twelve to eighteenmonths.

The Yimuyn Manjerr (Mt Todd) mine,located 45 km north-west of Katherine, hasrecently closed. It is possible that the minemay be sold and reopened given thatsufficient ore reserves remain to sustainmining for another two to three years.

The Maud Creek mine, located within theeastern boundary of the policy area hasrecently opened. Current open cut miningoperations will take six to eight months tocomplete. The mine has potential for furtherunderground development and explorationworks continue on and around the site.


700 600 500 400 300 200 100 0 100 200 300 400 500 600 700

0-4

10-14

20-24

30-34

40-44

50-54

60-64

70-74

80-84

1999 M 1999 F 1991 M 1991 F

Males

AGE DISTRIBUTION - KATHERINE

Females

Source: ABS

7 500

8 000

8 500

9 000

9 500

10 000

10 500

1991 1992 1993 1994 1995 1996 1997 1998 1999

ESTIMATED RESIDENT POPULATIONKATHERINE

Persons

Source: ABS


2. EVALUATION AND PLANNINGCONTEXT

This section of the report provides somediscussion of the factors affecting land use.The impact of flooding is the major factor inthe proposed changes to the 1991 land usestructure plan. These changes are intendedto reduce the damage burden on individualsand organisations resulting from futureflooding.

The 1% AEP flood level places a severeconstraint on the development of Katherine.New large scale residential development willbe directed to Katherine East above the1% AEP flood level. Developmentelsewhere should consider the risk ofinundation and include sensible designfeatures to minimise potential flood damageor alteration to the flow of floodwaters andmaximise recovery following any floodevent.

The current 1% AEP flood level, based onthe 1998 floods, is one to two metres higherthan the previous designated flood level,based on the 1957 flood. Provisions withinthe Katherine Town Plan and the KatherineRural Area Plan require proposeddevelopment or land use on flood affectedland to be referred to the DevelopmentConsent Authority. Building regulationsrequire the minimum floor level of habitablerooms within dwellings to be 300 mm abovethe 1% AEP flood level.

It should be noted that lands on thefloodplain above the 1% AEP flood levelmay, at some time, be inundated by floodsof greater magnitude. Therefore, alldevelopment in the floodplain (defined asthe area likely to be inundated by thePossible Maximium Flood or PMF) shouldhave due regard to the need to protectagainst inundation, by the use of site buildup and other flood-proofing measures. Thelatter could include the use of piers or splitlevel/two storey construction with ancillary,less essential activities at the lower level,and the use of construction methods andmaterials which would exclude flood watersfrom entering a building, or which resistdeterioration during inundation.

Recommended locations for specific landuses are shown on Figures 2A, 2B and 2C.

2.1. TOWN CENTRE

The town of Katherine is the principalcommercial centre in the region. The TownCentre supports retail uses, commercialoffice accommodation and increasingly,tourist uses with new development andimprovement of existing services andfacilities.

The preferred land use arrangement for theTown Centre has been considered in light ofcontinuing retail development alongKatherine Terrace and the implementationof design proposals and promotionalactivities arising from the KatherineMainStreet and the Urban Enhancementprograms and the Katherine Terrace MasterPlan. This current study reaffirms the role ofKatherine Terrace as the core retail andcommercial area for the region.

The Planning Concepts - Town Centre Area(Figure 2C) illustrates proposed land useconcepts for the Town Centre and theextent of the Central Business District. Therailway corridor has been relocated out ofthe Town Centre to an alignment south ofthe town and Tindal RAAF Base. This isaccompanied by a heavy vehicle corridoradjacent to the railway. Relocation of therailway removes the access restrictions tolands south of the Stuart Highway east ofthe Town Centre.

An arterial road connection is also providedby the extension of Chambers Drive southof Katherine Terrace to the VictoriaHighway. This will avoid the congestion ofKatherine Terrace and the built up areanorth of Condon Street along the VictoriaHighway. The provision of adequatebuffering to properties in Katherine East willbe a major consideration at the designstage of the road.

Despite the continuing likelihood of futureflooding, it is proposed to maintain touristand retail/commercial uses along KatherineTerrace and to extend the “core” area asdemand warrants, to First, Second andThird Streets, to the east of Lindsay Streetand south of the former rail reserve.Opportunities for future mixed useresidential/commercial development,predominantly residential and touristaccommodation, have been identified forthe blocks from Third to Fourth Streets andthose fronting O’Shea Terrace and Pearce,Kintore and Lindsay Streets. Developmentin this latter area could also include


tourist/commercial uses at ground levelwhere appropriate. The "core" of the TownCentre remains the preferred location forhigher order retail commercial uses such assupermarkets, arcades and specialityshops. Retail development outside of theTown Centre is to be discouraged, with theexception of a small neighbourhood centreat Katherine East. A district centre has beenidentified in future stages of the KatherineEast urban area, once its populationwarrants it. This district centre could providealternative emergency retail and otherservices at times of future flooding in theTown Centre.

The development of the courthouse and thegovernment office building in First Streetreinforces the civic and administrativefunctions of the Town Centre. It is possiblethat at some future date, the offices of theKatherine Town Council could be relocatedinto the Town Centre. A part of Portion 3025south of Railway Terrace might be suitablefor this purpose. In terms of commercialoffice space, the Australian Valuation Officeestimated in March 1999, that Katherinehad a net lettable floor area of 12 550 m2 ofwhich 2 203 m2 was vacant, (a vacancyfactor of 17.6%). There may beopportunities to partition and strata titlesome of this vacant floor space to cater forthe office needs of small business.Purpose-built accommodation would berequired should there be demand fromlarger businesses or organisations for officespace. There are sufficient vacant and/orunder-utilised sites within the corecommercial area of the Town Centre tosupport future office development and overtime, it is expected that existing non-conforming uses, such as light serviceindustry, will relocate outside the TownCentre making this land available for officeor commercial use.

Pedestrian movement around the TownCentre can be enhanced by promoting“pedestrian priority” areas in future retailand office redevelopment along KatherineTerrace in accordance with the KatherineTerrace Master Plan, with opportunities forretail arcades between Katherine Terrace,First Street and Railway Terrace. Provisionof a pedestrian priority road area in FirstStreet, between Warburton and GilesStreets, with general improvements inpedestrian linkages between retail areasand new central public parking areas is a

future possibility. Giles Street is proposed tobe the primary pedestrian axis, providingaccess between the core commercial areaalong Katherine Terrace, the Town Square,Railway Terrace and Second Street.

In the past, inquiries have been made withrespect to a possible site for thedevelopment of another major retail facilityon the southern side of Katherine Terrace,east of Lindsay Street. The proposedextension of Chambers Drive south ofKatherine Terrace would provide anopportunity to develop a suitablecommercial parcel here, with access fromKatherine Terrace and the Chambers Driveextension. However, with the potential forserious flooding at this site, considerationshould be given to flood-proofing optionsduring the initial design stage. This couldinclude the construction of covered parkingat the lower level, with the retail and storagefacilities at a higher elevation, above the1% AEP flood level.

Across Katherine Terrace from this site, theexisting Tourist Information Centre hasbeen redeveloped. An opportunity exists todevelop an improved bus transit facility witheasy access to the Tourist InformationCentre. Heavy vehicle parking facilitiesoutside the Town Centre and ultimately aheavy vehicle bypass of the Town Centreshould lessen traffic conflicts in the corearea in the longer term. These proposalsare further discussed in Section 2.5.

2.2. TOWNSCAPE AND URBAN DESIGN

The need to improve the image andfunction of the Town Centre has beenrecognised in a number of recent studies.The benefits of townscape improvementsinclude increased tourist activity, greaterbusiness confidence and investment,increased community use of public spaces,and enhanced amenity for residents,workers and visitors.

Urban design and enhancementopportunities are provided by the naturalsetting, cultural heritage and climate.Opportunities can be realised by the use ofshade structures and landscaping in futuredevelopment. It can also be realised withappropriate signage, convenient car parkingareas and tourist coach interchangefacilities. Pedestrian linkages between theTown Centre and surrounding attractions,


particularly the Katherine River areencouraged.

Landscaping in the Town Centre wasinitiated under the MainStreet program andhas been further refined in the KatherineTerrace Master Plan. The Master Planproposes widening of footpaths, planting ofadditional trees along the road edge,improving pedestrian access to thebuildings along Katherine Terrace andreducing the width of the median.Opportunities to improve the exterior designof the existing retail and commercialbuildings, to take account of Katherine’sclimate and to enhance pedestrian comfortand movement, were also included in theMainStreet proposals.

A design guide for the Town Centre wouldassist in promoting new commercialdevelopment which is sensitive to climaticconsiderations in its design.

The Town Square, provides a central openspace and focus for community activity.Features include perimeter shade trees,paved space, water feature and centralorientation to Katherine Terrace and GilesStreet.

2.3. RESIDENTIAL - URBAN

Katherine East is the preferred location forfuture urban residential development, as itis generally above the 1% AEP flood level.The extent of the 20 Australian NoiseExposure Forecast (ANEF) contour fromthe Tindal RAAF Base is shown onFigure 2B. Urban residential developmentinside this contour is generally consideredundesirable.

Future residential demand in Katherine willbe met by the further release of land abovethe 1% AEP flood level for urbandevelopment at Katherine East and throughlimited infill development within andadjacent to the Town Centre. Developmentsin the Town Centre area will require dueconsideration of flood-proofing as describedabove, as the area is below the 1% AEPflood level.

The southern neighbourhood at KatherineEast currently has poor access to localfacilities, such as shops and schools.Increased emphasis should be placed onthe planning and design of new residentialareas at Katherine East to provide betterconnections and to create a greater sense

of community identity and character. Theuse of neighbourhood centres to locate avariety of services, such as shops andmedical services within and close to newresidential areas and schools, can provide afocus for community neighbourhood activity.It is proposed that a local centre bedeveloped in conjunction with future urbanland release in the southern neighbourhoodof Katherine East.

The future identity and function of newresidential areas would be facilitated by thepreparation, prior to approval ofconstruction, of an Outline DevelopmentPlan to detail road, pedestrian and bicyclenetworks, and open space provision. Theplan should also identify and establish linkswith adjacent development and communityfacilities.

Neighbourhood amenity can be improved byenhancing local streets through landscapingand the provision of adequate lighting topromote safety. The design and layout oflocal open space areas can incorporate theretention/enhancement of the naturallandscape. This is particularly relevant atKatherine East which includes landscapefeatures such as rock outcrops, unique tothe Katherine area.

It is anticipated that single detacheddwellings will remain the dominant housingform in Katherine, given underlying familyand household characteristics. However,opportunities to provide medium densityforms of housing should be promoted inareas above the 1% AEP flood level.Construction of more intense residentialdevelopment should not be encouraged onsites formerly occupied by light industrialuses in the Town Centre. A range of lotsizes and dwelling types, such as duplexesand townhouses, will be encouraged in newresidential areas to improve housing choiceand affordability.

A report prepared for the Aboriginal UrbanLiving Areas Working Party identified thehousing needs of the existing and predictedAboriginal population for dedicated urbanliving areas to the Year 2004. Anassessment of the potential to expandexisting urban and rural living areas wasalso undertaken. The report supportedfurther development of existing urban livingareas (Kalano and Walpiri), even thoughthey are both below the 1% AEP flood level,


and new public rental housing at KatherineEast.

The report also identified a distinct set ofphysical planning principles to facilitate thedevelopment of Aboriginal urban livingareas and reflect social and culturalrequirements, including layout of housingand community facilities. These have beenaddressed in the Land Use Objectives(Section 3).

2.4. AGRICULTURE AND RURAL AREAS

The development of rural areas forscattered low density, predominantlyresidential uses has broad detrimentalimplications for the efficient use of landaround Katherine and the protection ofagricultural land.

There are significant areas aroundKatherine in production or with agriculturalor horticultural potential (arable soilscombined with groundwater supply). Theseareas have been identified for current andfuture agricultural production so that theycan be protected from inappropriatesubdivision.

New rural residential uses should belocated only on lands which minimise theimpact on the future use of good agriculturalland for primary production and whichgenerally lie above the 1% AEP flood level.Dispersed rural residential developmentshould be avoided to prevent potentialconflict with agricultural uses (egagricultural sprays) and retain good qualityland for primary production. Where conflictis likely, with adjacent non-compatible landuses, new development should incorporateappropriate buffers between uses. Similarly,the intrusion of non-residential uses intorural residential areas should be activelydiscouraged, in order to preserve theamenity of these areas.

Rural residential uses should not bedeveloped on land which will be required forfuture urban development or which wouldrequire the provision of costly infrastructure.

Land capability will influence the nature ofrural residential development in terms ofsubdivision layout, lot sizes and necessaryeffluent disposal systems. The occurrenceof limestone karst presents a significantenvironmental constraint and hazard fordevelopment and will generally requirelarger lot sizes to accommodate on-site

water supply and effluent disposal systems.Areas of poor drainage, which may affectaccess to properties and effluent disposal,should be avoided. Detailed analysis ofsuch physical constraints should be theprimary basis for the design of ruralresidential subdivisions. Adoption ofguidelines for rural residential subdivisionwould assist this process.

Minimum service requirements for ruralresidential development should include allweather road access, reticulated electricity,an environmentally acceptable means ofon-site effluent disposal and a potable watersupply. Rural residential uses should belocated so that residents have reasonableaccess to employment in the Town Centreand community facilities and services.

The broad areas proposed for ruralresidential development have beenidentified with regard to new land capabilityassessments and the impact of potentialflooding. Proposals include land adjoiningexisting rural residential development to thewest of Uralla Road above the 1% AEPflood level and land on Manbulloo Stationeast of Uralla Road.

Existing minimum lot sizes in rural areas willbe retained to minimise the risk ofgroundwater pollution. Smaller rural lotsizes may be considered where reticulatedwater supply and sewage collection can bereadily provided, such as the area west ofUralla Road, subject to assessment of thesuitability of the land for this intensity ofdevelopment. Areas adjoining the TindalRAAF Base should retain the existingminimum lot sizes (8 ha) to prevent anexcessive build-up of population in this areaand to ensure adequate separation betweendefence facilities and other land uses.

2.5. TRANSPORT AND MOBILITY

The efficiency of the existing transportnetwork in Katherine is affected by the dualfunction of Katherine Terrace as a nationalhighway and the Town’s central commercialstreet. For the purposes of this review, theexisting alignment of the Stuart Highwayalong Katherine Terrace will continue to bethe primary road transport corridor in theTown.

Investigation of options to provide for heavyroad freight and railway bypasses of theTown Centre have been completed and anumber of options considered including


routes to the north and south of the currenthighway alignment.

A road and rail bypass corridor to the southof the town is the preferred option, asshown in the Planning Concepts(Figure 2B). A major rail deviation aroundTindal RAAF Base is proposed. A futureheavy transport highway bypass corridorhas also been identified, leaving the StuartHighway west of Tindal and crossing theriver at the same location as the railcorridor. This corridor follows the futurerailway line before rejoining the StuartHighway about 8 km north of the existingKatherine River bridge. The intermediateuse of Bicentennial Road as a heavy vehiclebypass, particularly for traffic travelling tothe Victoria Highway, will necessitatesubstantial upgrading of this road as it wasnot designed nor built for heavy traffic.

In addition, the extension of Quarry Roadthrough to Gorge Road is recommended forfuture consideration. This would provide aconnection to the Stuart Highway above thePMF, offering an alternative route awayfrom future flooding. The link betweenGorge Road and Chambers Drive nearKatherine East could also be useful in thisregard at lower flood stages.

It should be noted that discussions arecurrently in progress involving theDepartments of Transport & Works andLands, Planning & Environment and theKatherine Town Council with regard to anumber of traffic circulation problems in andaround the Town Centre. Among these arethe need to improve the VictoriaHighway/Katherine Terrace intersection,and future connections from the TownCentre to Chambers Drive.

Opportunities exist to develop a truckbreakdown and highway service facility.Possible locations include the CrawfordStreet industrial area south east of theTown Centre, the Emungalan Roadindustrial area north of the town or adjacentto the railway crossing at the VictoriaHighway.

Locations for future industrial areas andregional and local road networks takeaccount of proposed transport corridors. Alink road from the proposed Katherine EastArterial (Chambers Drive) to the GorgeRoad in association with futuredevelopment of Katherine East is proposed.

Vacant land at the eastern end of the TownCentre presents opportunities to improvefacilities for tourist coach operations. A newtransit facility could be established south ofKatherine Terrace, near the redevelopedtourist information centre, to provideadditional parking areas for buses and carswith trailers and caravans. As indicatedpreviously, attention will need to be given toflood-proofing this facility. Such adevelopment should improve access,parking and circulation of tourist traffic ingeneral.

Maintaining retail uses along KatherineTerrace raises issues relating to parkingand traffic movement and pedestrianaccess, safety and amenity. Continuedtraffic growth in the Town Centre will requirea review of parking arrangements alongKatherine Terrace. Retail uses that supportpedestrian access will be promoted alongKatherine Terrace. Parking areas forcommercial and retail users should belocated convenient to services andemployment, to encourage pedestrianmovement around the Town Centre.Parking provided in conjunction with newretail and commercial developments in theTown Centre should be sufficient to meetdemand generated by each developmentand should be located off-street. Suchredevelopments should consider theappropriateness of flood proofing byproviding lower level parking with theretail/commercial uses above.

Walking and cycling is encouraged throughthe provision of safe and convenientpedestrian and bicycle routes throughoutthe town. This may require the integration ofsafety features in the design of residentialneighbourhoods, such as the use of trafficmanagement devices in local streets.Future opportunities to accommodate publictransport services (taxi and bus stops)should also be considered in the planningand design of residential areas andcommunity facilities at Katherine East andin the Town Centre.

2.6. INDUSTRY

Being largely above the 1% AEP flood level,the Emungalan Road industrial area is thepreferred location for light and servicerelated industries. It is proposed to increasethis area, including an extension to thenorth. However, no water or sewageservices are available north of the Katherine


River, and attention will need to be given tothe impact of development in this area onthe aquifer. Any future development willrequire the provision of potable water andappropriate effluent disposal systems. TheCrawford Street area is an alternativelocation, but less attractive than EmungalanRoad as expansion would have to considerthe impact of possible inundation of thefloodplain in this area. Intensification of lightindustrial development should generally bediscouraged at other locations and therelocation of existing light/service uses fromthe Town Centre and Pearce Street shouldbe encouraged.

The location of future industrial uses takesaccount of the proposed rail corridor andfuture opportunities to provide a rail siding,freight handling and transfer facilities. Afuture industrial area has been identifiedadjacent to the rail corridor to provideaccess to the proposed freight line.

Expansion of existing offensive andhazardous industries at Emungalan Roadand south of the Katherine Riverdownstream at the Low Level Crossing is tobe discouraged due to land use conflictswith surrounding rural and rural residentialuses, possible impacts on groundwater andthe river and the potential for inundation.Hazardous industries (such as petroleum orgas storage) or offensive industries (suchas an incinerator or abattoir) should not belocated in or near urban areas and shouldavoid areas subject to inundation by thePMF, drainage systems and limestoneareas (pollution risk to groundwater). Theestablishment of offensive industries shouldhave regard to climatic considerations(particularly prevailing winds) and include abuffer within the development to minimiseconflict with surrounding uses. Theproposed industrial area adjacent to theproposed rail corridor would be appropriatefor such industries, subject to adequatebuffering from rural uses.

2.7. INFRASTRUCTURE AND COMMUNITYFACILITIES

Sequencing of new residential developmentin the southern neighbourhood of KatherineEast provides the most efficient means ofextending and augmenting the existingwater supply and sewage systems. Recentinvestigation of future urban areascontiguous with the existing residential area

reveal that this area is not affected by near-surface sinkholes.

Increased residential populations willrequire the expansion of existing water andsewage systems to cater for increaseddemand.

The timely provision of social infrastructuresuch as schools and community facilitiescan be achieved by appropriatecoordination with residential development.For example, a primary school and localcentre will be required with the continueddevelopment of the southernneighbourhood in Katherine East. Areashave been identified for future school sitesand neighbourhood and district facilities atKatherine East to cater for the expectedresidential population.

Design of neighbourhood stormwaterdrainage systems at Katherine East hasused natural depressions as retardingbasins and sinkholes for disposal. Futuredesigns should include the use of silt traps,gross pollutant traps and retardation basinsupstream of sinkholes to minimise potentialfor siltation, contamination and pollution ofgroundwater.

In rural areas where there is potential forgroundwater pollution from on-site effluentdisposal systems, the scale (density) andextent of rural residential development willneed to be effectively managed. This canbe achieved by maintaining appropriatedensity controls (minimum rural lot sizes),where groundwater is used for domesticpurposes and septic systems for effluentdisposal, to ensure adequate separation ofthese elements.

As indicated previously, there is a need toprevent incompatible land uses encroachingon the existing airport infrastructure (TindalRAAF Base). Adjoining areas have beenidentified for rural residential developmentwith the existing minimum lot sizes (8 ha)retained to ensure adequate separationbetween defence facilities and other landuses. The ANEF contours (Figure 2B)provide a basis on which to assess the likelynoise impacts and consider appropriateland uses in the affected locality.

2.8. TOURISM

Tourism is a major component of theregional and local economy. Recentstudies, particularly the Katherine Regional


Tourist Development Plan, have highlightedthe need to encourage improvements andnew developments in tourist facilities inKatherine. The plan recommends thepromotion of longer stays by enhancingmajor attractions and improving amenities,interpretative facilities, signs and access tolocal attractions.

Katherine’s major tourist activity is currentlyfocussed on the natural river environment,particularly Nitmiluk National Park.Proposals such as the Aboriginal CulturalCentre, Heritage Museum and the PioneerHeritage Walk would broaden this base.

Urban design initiatives in the Town Centrecould also attract greater tourist activity byproviding increased amenity and pedestriancomfort. The Pioneer Heritage Walk willprovide a tourist attraction in the centre ofthe town and establish a direct pedestrianlink to Ryan Park and the Katherine River.The former rail reserve adjacent to RailwayTerrace is recommended for the location ofnew commercial and tourist facilities,including a bus interchange/transit facilityand tourist car parking.

There is increased scope for touristaccommodation in and around the TownCentre, around Gwendoline Drive northwestof the river, at the Low Level Crossing andalong the proposed link road from theKatherine East Arterial to Gorge Road.Development of seasonal tourist caravanparks in areas subject to seasonal floodingrepresents a reasonable use of the floodplain, as most of the tourist traffic occursduring the Dry season. However, thetendency for more permanent residentialuse of these developments and increasedWet season visitor traffic should not beaccommodated on the floodplain. Ablutionblocks and ancillary park facilities should bedesigned to not obstruct flood flows andconstructed to handle periodic inundationduring the Wet season.

2.9. OPEN SPACE – RECREATION ANDCONSERVATION

The natural setting of the town along theKatherine River presents uniqueopportunities for open space and recreationuses adjacent to the Town Centre andestablished residential areas. Proposals forrecreational development need to becompatible with the natural environment.The Katherine River Masterplan provides a

broad management framework for the riverand includes proposals to enhance publicaccess and interpretative facilities toreinforce the river’s attractions whileprotecting conservation values.

New development adjacent to the rivershould ensure that public access is retainedand enhanced where appropriate.Management plans being prepared for theriver will identify appropriate areas foraccess (and any associated recreationalfacilities) and sensitive sites where accessshould be restricted and/or rehabilitation isrequired.

Proposals under the earlier MainStreetprogram have enhanced open space in theTown Centre, providing street furniture,planting shade trees and developing theTown Square. This development has beentaken further with the recent KatherineTerrace Master Plan, as outlined above inSection 2.2. The Town Centre Area(Figure 2C) suggests additional open spacewithin the Town Centre and improvedpedestrian links to adjacent open space.New parks are proposed for the corner ofGiles and First Streets in the Town Centreand possibly at the northern end of the oldrailway bridge.

Katherine has a variety of public facilities foractive recreation dispersed throughout thetown. The floodplain east and south east ofthe Town Centre is the preferred location forthe siting of such activities, given itsproximity to the established residentialareas of Katherine and Katherine East.There is potential for further development offacilities in this area and improvedpedestrian linkages between the TownCentre and other facilities, such as theracecourse and showground. Landidentified for open space includes much ofthe southern floodplain within the KatherineTown boundary.

Developed open space within newresidential areas in Katherine East shouldbe accessible, safe and functional, linkedwhere possible with other open space andcommunity facilities using walkways andbicycle paths. Generally, a variety ofsettings such as local parks, linear andnatural areas should be provided.Opportunities to retain some areas in theirexisting state, incorporated in a widersystem of natural areas throughout


Katherine, should be considered in thedesign of neighbourhood open space.

2.10. ENVIRONMENT AND CONSERVATION

There is increasing recognition of the needto protect significant features of the naturallandscape in the rural and urban areas ofKatherine. The landscape character ofKatherine is determined by its naturalsetting, low ridges, rock outcrops, and theriver.

A conservation and management strategyshould be developed to identify and protectareas of nature conservation and landscapesignificance including vegetation alongwatercourses and ridges, and corridors forwildlife movement. In particular, theconservation values of the Katherine Riverand its catchment need to be protected.

The Katherine River Masterplan hasreinforced the fact that the river corridor islargely unmodified, provides a permanentwater source for wildlife and functions as awildlife corridor between Nitmiluk NationalPark and natural areas downstream.Threats to the conservation values of theriver are greatest in those parts of thecorridor adjoining urban areas. Recreationalimpacts and access need to be managedand more sensitive development andcontrol of land uses adjacent to the river isrequired, including the protection ofvegetation on the river bank.

Future development of rural and urbanareas for residential uses need to considerareas of conservation and landscapesignificance. This can be achieved bysensitive site planning, subdivision designand development techniques, whichpromote the retention of vegetation andnatural features such as rock outcrops anddrainage systems and integration of thesefeatures in open space networks.

The Katherine River is subject to a naturalcycle of flooding during the Wet season.The possibility of major flood events is amajor constraint to the development of floodprone areas of the town. Existing floodwaysshould be protected and development onthe floodplain minimised by encouraging lowkey uses such as passive recreation.

Surface water runoff from urban areas intothe Katherine River poses a potentialsource of pollution. This is especially truewithin the catchment area of the river

upstream of the pump house at DonkeyCamp Pool. This drainage catchment areais shown on the Land Use Structure Plan.Uses within this area which maycontaminate the water supply areprohibited, or will require special conditionsto ensure the maintenance of domesticwater quality. The use of sinkholes for thedisposal of urban stormwater in KatherineEast also increases the likelihood ofpollution of groundwater and the river itself.Continued urban development at KatherineEast is likely to generate greater flows,which has the potential to affect waterquality and result in siltation of thesinkholes. This will reduce disposal capacityof the sink holes and they should no longerbe relied upon as a drainage solution.Stormwater drainage will need to beconsidered at the design stage of newresidential estates.

In rural areas, the potential forcontamination of groundwater from on-siteeffluent disposal systems needs to beconsidered in determining the appropriatescale (density) of rural residentialdevelopment.

3. LAND USE OBJECTIVES

3.1. SCOPE

The Katherine policy area covers8 517 hectares and includes the Town ofKatherine and the adjoining rural area thatis serviced by the town (Figure 1A).

The Land Use Objectives are statements ofplanning policy and, under the provisions ofthe Planning Act, are binding on theDevelopment Consent Authority. Land UseObjectives should not be confused with theprovisions of the Katherine Town Plan orthe Katherine Rural Area Plan. TheDevelopment Consent Authority will, indetermining a development application,interpret and apply those provisions in amanner consistent with the Land UseObjectives which:

� establish policies for the managementof Katherine’s growth and developmentas a regional urban centre and aservice centre for the tourist andpastoral industries;

� provide a framework to guide thelocation, type and nature of land useand development in Katherine;


� provide an outline for futureinfrastructure and service provision inKatherine; and

� set strategic policy directions for thereview of land use controls forKatherine.

The land use objectives should be read inconjunction with the supporting informationin Section 2 and the Planning Concepts(Figures 2A, 2B & 2C).

3.2. KATHERINE PLANNING CONCEPTS

The Planning Concepts depicted atFigures 2A, 2B and 2C are incorporateddocuments within the meaning of thePlanning Act. They establish recommendedlocations for major land uses toaccommodate a population horizon of20 000 people. Land use and infrastructureproposals identified in the planningconcepts include:

� improved road links between GorgeRoad and Katherine East and the StuartHighway, and connection of ChambersDrive to the Victoria Highway;

� provision for additional tourist facilitiesand accommodation in the TownCentre, on Pearce Street, and near theLow Level Crossing;

� reservation of a transportation corridorto provide a future road and rail bypassto the south of town;

� provision for an industrial area adjacentto the proposed rail corridor at theVictoria Highway;

� minor extension to the EmungalanRoad light industrial area;

� provision for a conservation-open spacecorridor along the Katherine River; and

� rural residential uses west of UrallaRoad above the 1% AEP flood level.

3.3. INTENDED OUTCOMES

The land use objectives are designed toachieve:

� a functional Town Centre characterisedby a vibrant commercial area withattractive streetscapes and improvedamenity;

� opportunities for mixed usedevelopment with commercial uses and

residential and visitor accommodationwithin and adjacent to the Town Centre;

� a reduced damage burden ongovernment, individuals andorganisations as a consequence ofperiodic flooding;

� improved traffic circulation, enhancedpedestrian movement and convenientparking;

� improved tourist facilities andattractions reflecting the natural andcultural heritage of Katherine;

� improved landscaping and provision ofadditional open space in the TownCentre and residential areas;

� more cohesive residentialneighbourhoods with an emphasis oncommunity focal points, identity andservices;

� improved urban living areas forAboriginal people;

� a network of pedestrian paths andbikeways throughout the townconnecting residential areas with majoropen space and commercial andcommunity facilities;

� appropriately sized rural residential lotdevelopment in areas above the1% AEP flood level which minimisespotential adverse impacts on naturaland environmental resources;

� greater recognition, protection andconservation of the natural landscapeincluding the Katherine River corridor;and

� appropriately located industrial uses,including opportunities for access to railtransport.

3.4. LAND USE OBJECTIVES

The Land Use Objectives are shownshaded and only those shaded words are“made” by the Minister as Land UseObjectives within the meaning of thePlanning Act. Some suggestions as to howthe objectives might be advanced areoffered in dot points.

The land use objectives should be read inconjunction with the planning concepts.


The key objectives for Katherine are:

To encourage orderly and appropriate landuse and development within the planningregion.

To protect and enhance the natural, culturaland historical resources of the region.

To optimise the use of existing services andinfrastructure and promote the efficientprovision of services and infrastructureconsistent with the intensity and type ofdevelopment proposed.

To enhance the quality of life of Katherine’sresidents, encouraging the provision ofservices and community facilities early inthe development process.

To ensure that development of any land isnot likely to jeopardise the future orderlyand economic development of the land orland in its vicinity and the region generally.

To encourage appropriate development ofurban and rural areas which takes accountof the natural resources

3.5. SPECIFIC LAND USE OBJECTIVES

These objectives establish broad policy inrelation to various land uses or land useissues.

3.5.1. Urban Structure and Design

To promote a greater pedestrian focus forcommercial activities in the Town Centre.

This can be achieved by:

� encouraging pedestrian movement andaccess within the Town Centre,including the possible development of apedestrian priority road section in FirstStreet; and

� improving pedestrian facilities, includingfootpath widening and paving,landscaping, shade structures andconvenient off-street parking.

To provide an adequate supply of urbanresidential land and housing.

This can be achieved by encouraging:

� the staged development of new urbanresidential neighbourhoods at KatherineEast; and

� a range of residential lot sizes in newresidential areas to provide morehousing choice and improvedaffordability.

To provide residential opportunities in ruralareas while retaining the scenic quality andlandscape character of the land andgroundwater quality.


� requiring adequate assessments todemonstrate the physical capability ofthe land to support rural residentialuses;

� ensuring that the scale and density (lotsizes) of development is appropriate tothe physical constraints such aspotential flooding and groundwateravailability; and

� retaining, where appropriate, wildlifecorridors, refuges and other naturalfeatures (such as rock outcrops) aspublic open space within ruralresidential subdivisions.

To enhance the function and amenity ofresidential areas.

This can be achieved by promoting:

� the retention of vegetation and naturallandscape features within residentialareas, integrated into local open spaceareas where appropriate;

� the development of neighbourhoodcentres in locations convenient toresidential areas; and

� the adoption of Outline DevelopmentPlans for new urban residentialsubdivisions, which provide networks ofopen space, pedestrian and cycle pathsand road systems within eachneighbourhood, as well as relating toadjacent neighbourhoods.

To improve the amenity and function of theexisting Aboriginal urban living areas.


� innovative housing design that isresponsive to cultural requirements;

� the provision of appropriatelandscaping, open space areas,


community facilities and services andvisitor accommodation; and

� the preparation of landscape plans toprovide, wherever practical, for shadetrees and the retention of naturalvegetation within the layout of livingareas.

To minimise the impacts of industry oncommercial and residential areas.


� encouraging the relocation of lightservice industries from the Town Centreand Pearce Street to the EmungalanRoad and Crawford Street industrialareas; and

� accommodating hazardous and/oroffensive industries in the proposedindustrial area adjoining the rail corridor.

To encourage the development of tourist-related facilities.

This can be achieved by implementing theNorthern Territory Tourism DevelopmentStrategy and the Katherine RegionalTourism Development Plan.

3.5.2. Culture and Lifestyle

To reinforce the role of the Katherine TownCentre as the main commercial andbusiness centre of the Katherine Region.


� discouraging major commercial or retaildevelopment from locating outside theTown Centre;

� encouraging retail, office and othercommercial uses requiring pedestrianstreet frontage and exposure to locateon Katherine Terrace; and

� encouraging commercial uses notrequiring pedestrian street frontage tolocate at the rear of developments or onthe upper levels of buildings.

To increase the appeal of the Town Centrefor residents and visitors.


� enhancing the general amenity andproviding facilities for visitor comfortand convenience, in accordance withthe Katherine Terrace Master Plan;

� encouraging new retail and commercialdevelopment to be consistent with

appropriate building and landscapingguidelines; and

� developing a landscaping strategy toimprove streetscapes with shade forpedestrians and cyclists while takinginto account the need for road safetyand commercial exposure.

To maintain a high level of amenity in ruralresidential areas.


� providing basic services such as sealedroads, power, potable water, effluentdisposal and access for firemanagement;

� locating rural residential uses in areaswith convenient access to the TownCentre and community facilities and inareas not required for future urbanresidential expansion;

� protecting the rural residential lifestyleby locating high traffic and noisegenerating activities on major roads andnot within rural residential subdivisions;and

� maintaining the existing 8 ha minimumlot size east of Uralla Road to provideadequate area to accommodate watersupply and waste disposal on each lot,and to provide a buffer between theTindal RAAF Base and other moreintensive land uses.

3.5.3. Environment and Conservation

To protect and conserve land suitable foragriculture.


� preventing encroachment ofincompatible land uses on agriculturalland which may restrict legitimatefarming activities; and

� preventing subdivision of this land intoparcels unsuitable in size and shape forsustainable agricultural and horticulturalproduction.

To provide for the use and management ofextractive mineral resources to meetcommunity needs while minimising adverseenvironmental and social impacts.

To rehabilitate extractive mineral sites toappropriate environmental standards.


These can be achieved in part by:

� requiring the proponents of extractiveresource developments to providedirect long-term community benefitsthrough training and employmentprograms; and

� at the completion of the project,reclaiming worked out open pits for useas recreational lakes where this ispossible.

To locate hazardous and offensiveindustries in appropriate areas.


� avoiding flood prone/inundated land,drainage systems and areas containingcavernous limestone;

� having regard to prevailing winds; and

� including buffers to light industry andrural areas, where appropriate.

To protect existing, and to provide forfuture, airport and defence infrastructure.


� providing adequate separation betweendefence facilities and other land uses toprevent restrictions on activities as aresult of encroachment by incompatibleland uses;

� minimising human occupation of noiseaffected localities; and

� encouraging aviation related industriesto locate at Katherine Airport.

To encourage the provision of a range ofopen space and recreational opportunitiesin Katherine, compatible with the naturalenvironment.


� implementing the recommendations ofthe Katherine River Masterplan (andrelevant Plans of Management) forimproved public access andmanagement of the river forrecreational purposes;

� improving public access to the river bydeveloping appropriate links to the riverand a cycle and pedestrian path alongthe river; and

� locating active recreational uses (golfcourse, playing fields) and open spacefor passive recreation within the eastern

and southern floodplain, near residentialareas.

To promote the development of functionaland attractive public open space withinresidential areas.


� establishing neighbourhood open spaceat convenient locations, with pedestrianand cycle linkages between areas;

� providing a variety of urban openspaces, including formallocal/neighbourhood parks and naturalareas such as corridors alongwatercourses and limestoneescarpment areas; and

� preparing a strategy to manage openspace, remnant vegetation and othernatural landscape features within theurban framework.

To protect the conservation, heritage andlandscape values of the Katherine regionand to minimise impacts on these values.


� identification and retention of naturalareas significant for conservation,including remnant vegetation,vegetation along watercourses andridges, and corridors providingconnectivity between natural areas, tomaintain landscape quality and amenityin urban and rural areas; and

� conservation and enhancement ofitems, structures and places of historic,scientific or cultural significance,including Aboriginal relics and sites.

To protect the existing and potentialfunction of the Katherine River, itstributaries and floodways for domestic watersupply, drainage, recreation and ecologicalpurposes.

This objective can be achieved by:

� preparing a floodplain managementplan to minimise development on thefloodplain and floodways and directdevelopment to areas not affected byfloodwaters;

� controlling land use and developmentwithin the Katherine River catchment tomaintain water quality; and

� designing drainage networks with silttraps, gross pollutant traps and


retardation basins upstream ofsinkholes, to minimise adversestormwater impacts on water quality indownstream watercourses.

3.5.4. Transport and Infrastructure

To encourage the development of anefficient transport network in Katherine.

To minimise the impact of heavy traffic andnoise in the Town Centre and residentialareas.


� establishing a road hierarchy whichrestricts major traffic movements toarterial roads and creates pedestrian-friendly residential streets;

� subject to any necessary upgrading,encouraging the diversion ofnorthbound heavy traffic destined forthe Victoria Highway onto BicentennialRoad;

� protecting the proposed Darwin to AliceSprings railway corridor and futurehighway bypass to the south ofKatherine, as well as the futureextension of Quarry Road to GorgeRoad; and

� improving the intersection at the cornerof Katherine Terrace and O’SheaTerrace.

To improve facilities for freight transport andtourist coach operators.


� supporting development of a truckparking and service facility, to enableroad trains to be separated into singletrailers and to provide truck operatorsaccess to appropriate services; and

� the development of a transit centre forinterstate and local tourist coaches,taxis and mini buses located as part of,or near, tourist information and relatedvisitor services in the Town Centre.

To enhance future industrial access to railtransport services.

This can be achieved by developing a railsiding and freight handling/transfer facilitiesadjacent to the proposed Darwin to AliceSprings rail corridor at the Victoria Highway.

To facilitate pedestrian movement aroundthe Town Centre.


� installing appropriate trafficmanagement devices to minimisepedestrian/vehicular conflicts;

� providing adequate off-street carparking areas within the Town Centre,with improved pedestrian access alongKatherine Terrace in accordance withthe Katherine Terrace Master Plan, andlinks to major retail and commercialfacilities; and

� improving traffic circulation and parkingarrangements on Railway Terrace,giving priority to pedestrians and touristtransport.

To provide for safe, convenient pedestrianand vehicular movement and enhancemobility in residential areas.


� providing opportunities for theestablishment of public transportservices;

� applying appropriate practice in thedesign and layout of residential streets;and

� providing a safe and convenientpedestrian and cycle network withconnections to community facilities andthe Town Centre.

To provide quality infrastructure in a cost-efficient and timely manner.


� encouraging the appropriatesequencing of new residentialdevelopment;

� coordinating the design of reticulatedservices to urban areas includingunderground electricity, water andsewer systems; and

� coordinating the provision of communityand local shopping facilities withresidential development.

katherine - nt.gov.au · katherine has a wealth of history. centred within a prosperous pastoral...

Documents