NAMBUCCA SHIRE COUNCIL

 

 

General Purpose Committee - 20 May 2009

 

LATE AGENDA                                                                                        Page

 

8        General Manager Report

8.2     Section 94 Developer Contributions:  Bellwood Local Roads and Traffic Contribution Plan 2009   



General Purpose Committee

20 May 2009

General Manager's Report

ITEM 8.2      SF1207            200509         Section 94 Developer Contributions:  Bellwood Local Roads and Traffic Contribution Plan 2009

 

AUTHOR/ENQUIRIES:     Bruce Potts, Section 94 Co-ordinator         

 

Summary:

 

The Nambucca Shire Section 94 Developer Contribution Plan: Traffic Management and Control was adopted by Council in October 1996. The plan authorised Council to require developer contributions to assist the upgrading of traffic facilities in Bellwood precinct in regard to the predicted demand of new residential and commercial development at that time.

 

Changing residential and commercial development profiles in Bellwood have now required the review and amendment of the current contribution plan to clearly reflect the road infrastructure needs in the area, and to provide a more accurate cost of new infrastructure and framework for delivery of the infrastructure required to be provided by Council to ensure that appropriate traffic management measures are put in place to address the expected level of traffic generated in the area.

 

This Report details the preparation of the Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009, and advises Council that it is now completed and ready for public exhibition.

 

The draft plan is attached for Council’s information.  A reduced copy of the draft concept plans for the roads upgrading are attached and scale plans (A3) will be tabled at the General Purpose Committee Meeting.

 

 

Recommendation:

 

That Council endorse the Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009 for public exhibition for a period of 28 days.

 

 

OPTIONS:

 

Council may choose not to endorse the Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009, and to retain the current contribution plan.  However, this may ultimately see the need for Council to fund future traffic management measures or limit future development in order to maintain acceptable traffic impacts.

 

 

DISCUSSION:

 

Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009 authorises Council to require a monetary developer contribution on all new residential and commercial development in the identified road catchment, described in the contribution plan.  The plan details how Council proposes to collect and spend the contributions on new road and traffic infrastructure, required as a result of new development placing increased demand on existing local road and traffic infrastructure. This new road and traffic infrastructure will include the upgrade of the intersection of Bellwood Road and the Pacific Highway, the intersection of Bellwood Road and Mumbler Street and the intersection of Bellwood Road and Marshall Way.

 

In March 2009 Council engaged Roadnet Pty Ltd to undertake investigations on the Bellwood local road network which included the modelling of future traffic volumes in response to various development scenarios, and development of engineering design for key infrastructure upgrades across the road network to address the modelling outcomes.

 

The current zoning permits the creation of an additional 550 residential lots and based on Roadnet’s advice, an additional 7000 square metres of commercial Gross Floor Area over the existing approved entitlements.  This in turn will lead to an increase in the local population of 1,320 persons and an additional 332 commercial car parking spaces respectively.

 

Traffic modelling undertaken by Roadnet Pty Ltd on behalf of Council has determined that the increase in the residential population combined with new commercial development will lead to an increase of 1,577 vehicle movements per hour across the local network.

 

The contribution plan will replace the Bellwood component of the current Nambucca Shire Section 94 Developer Contribution Plan:  Traffic Management and Control, and will levy all new development within the contribution catchment, identified in the plan as Map C.1. for the provision of new road and traffic infrastructure determined as being required to meet increases in traffic volumes.

 

 

Objectives of the Contribution Plan

 

The Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009 authorises Council to undertake a specific works program to provide new or extended road and traffic infrastructure at locations identified in the contribution plan.  The contribution plan has the objectives of:

 

(a)  identifying infrastructure to be provided through the use of developer contributions collected under the previous plan;

 

(b)  identifying infrastructure to be provided through the use of future contributions collected under this plan.

 

 

 

 

Legislative Requirements

Under the current Legislation a developer contribution can only be sought where an adopted contribution plan is in place and where it is explicitly authorised. tThe authorisation to demand a developer contribution is underpinned by the demonstration of nexus between the development from which a contribution is sought and the facility or infrastructure to be provided. Councils authority to demand a developer contribution is therefore retained through the adoption and enforcement of a contribution plan.

 

 

 

Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009

 

The decision to review the current contribution plan was made in the light of proposed legislative changes to the Environmental Planning and Assessment Act foreshadowed in 2008.  Additionally a review of the current plan had not been undertaken since its adoption in 1996 and was overdue.

 

 

Local Traffic Modelling

 

Review of the plan determined that:

 

·      additional residential development to the north of Bellwood Creek, would place an increased demand on the existing local road network including Marshall Way and Bellwood Road in the event the road segment linking Marshall Way and Alexandra Drive was constructed as planned;

 

·      additional residential development south of Marshall Way would increase traffic volumes on Marshall Way and Bellwood Road, placing additional load on key network intersections;

 

·      the potential for development south of Bellwood Road would place additional demand on Bellwood Road; and

 

·      additional development in existing commercial zonings would place additional burden on key intersections.

 

At the time the current plan was developed in 1996 it was not required to address the issues of new development north of Bellwood Creek, or additional residential development south of Marshall Way and the cumulative effect the increases in traffic volumes generated by the developments would have on the existing road network.

 

Under the current zonings the most likely residential lot yield in the area north of Bellwood Creek is 363 lots, and 187 residential lots south of Marshall Way, a total of 550 new residential lots leading to a new population of 1,320 persons. Additionally, commercial development within the catchment would require 332 new car parking spaces.

 

Traffic modelling undertaken by engineering consultancy Roadnet Pty Ltd on behalf of Council determined that total vehicle movements generated by the increase in residential population, across the network, would increase by 467 vehicle movements per hour. Commercial development would generate a further 1,110 vehicle movements per hour giving a total increase in traffic volumes across the local road network of 1,577 vehicle movements per hour.

 

 

Local Traffic Infrastructure Schedule

 

The Nambucca Shire Community Facilities and Open Space Developer Contribution Plan 2008 authorises Council to undertake a specific works program to provide new or extended community infrastructure at specific locations to meet increased demand. The projects included in the Works Schedule meet the Legislative requirement of nexus and have either been:

a)§included in the previous contribution plan schedule, or

b)§have been identified as being required due to the shifting demographic profile and development pattern of the Shire or

c)§replace previous s.94 projects which have been completed, or where it is shown the facility or infrastructure is no longer required or has been provided elsewhere, abandoned.

 

With regard to c) above, under the current Legislation, Councils may use developer contributions collected for a specific purpose or project, to be used for an equivalent purpose, where the original purpose is no longer required, or where it has been provided elsewhere. These funds may be utilised only for equivalent projects where the s.94 criteria can be met.

 

In this regard the new contribution plan authorises the use of previously collected section 94 funds for community infrastructure projects that replace former project items that have either been provided and surplus funds remain, or are deemed to be no longer required and have been abandoned.

 

Councils are obliged under the current Legislation to ensure developer contribution plans reflect current trends in service, facility provision and cost. The new 2008 contribution plan effectively meets Councils obligations in this regard.

 

Contribution Plan Objectives

 

The format of the 2008 contribution plan follows the guidelines set down by the Department of Planning (2005) and clearly sets out the principles by which Council will collect and use monetary contributions collected under section 94.

 

The 2008 contribution plan has the objectives of:

(a)§identifying community infrastructure to be provided through the use of developer contributions collected under the previous plan

(b)§identifying community infrastructure to be provided through the use of future contributions collected under this plan

(c)§authorising Council to use previously collected funds on equivalent projects of a section 94 purpose where the original project is no longer required or is no longer appropriate to the community need

(d)§being reviewed and amended, where required, on completion of Community Facility and Infrastructure Needs Study so as to accurately meet future demand

 

Works Program

 

The Works program has been developed in consultation with Councils senior management and initiates projects across the Shire where a clear nexus can be made between the need for new or improved community infrastructure and increased population. Most projects included in the Schedule are of a type that can demonstrate the total cost to provide the planned infrastructure can be met by contributions previously collected under the current plan. Projects where Council will be required to provide an apportioned contribution are clearly described.

 

Given the increased traffic volumes generated by the additional development, tThe following road projects within the Works Schedule wereare determined and costed by the Director Engineering Services and Director Environment and Planning. necessary to maintain a satisfactory level of service across the local road network affected by increased traffic movements in the contribution plan catchment and are included in the new draft contribution plan.

 

Item 1:        Intersection Upgrade:  Pacific Highway and Bellwood Road, Bellwood

 

Increased traffic volumes generated by new residential and commercial development will require the intersection of Bellwood Road and the Pacific Highway to be upgraded. The upgrade is required to prevent congestion along Bellwood Road and Mumbler Street and to sustain safe vehicle access to the Pacific Highway.

 

                   Traffic modelling of the intersection has determined the need for automatic traffic signals to be provided at this intersection over the longer term. Works required in the medium term involve installation of small medians and linemarking to create improved delineation of Pacific Highway – Bellwood Road Junction.

 

 

Item 2:        Roundabout construction: Bellwood Road and Mumbler Street, Bellwood

 

                   Increased traffic volumes generated by new residential development and future commercial development will require a contribution towards the construction of a new traffic roundabout at the intersection of Bellwood Road and Mumbler Street. Scope of works will provide for the installation of a 2 lane roundabout located within Bellwood Road 90m west of the junction of the Pacific Highway. The roundabout provides access to the existing Nambucca Plaza Shopping Centre to the north and Mumbler Street to the south.

 

 

Item 3:        Intersection Upgrade: Pacific Highway and Riverside Drive, Bellwood

 

Increased traffic volumes generated by new residential and commercial development west of the highway will require the intersection of Riverside Drive and the Pacific Highway to be upgraded. The upgrade is required to prevent congestion on the Pacific highway back to Bellwood Road from vehicles negotiating the right hand turn from the Highway into Riverside Drive and to sustain safe vehicle access to the pacific highway.

 

                   Traffic modelling of the intersection has determined the need for automatic traffic signals to be provided at this intersection over the longer term. Works required in the medium term involve installation of small medians and linemarking to create improved delineation of Pacific highway – Riverside Drive junction.

 

 

Item 4:        Construction of Road Segment between Alexandra Drive and Marshall Way

 

Development of residential land north of Bellwood Creek will require the construction of the road segment between Alexandra Drive and Marshall Way to provide access to the Pacific Highway at Bellwood.  180 metres of road will be constructed under section 94.

 

 

Item 5:        Bellwood Road Upgrade between Mumbler Street and Marshall Way

 

                   To allow for road widening, replacement kerb and gutter will be installed on the northern and southern sides of Bellwood Road, between the Mumbler Street and Marshall Way, and at the intersection of Mumbler Street at the new roundabout location. Medians are located on Bellwood Road for a distance of 55 metres west of the roundabout.

 

 

Item 6:        Roundabout Construction: Bellwood Road and Marshall Way

 

                   Installation of a 2 lane roundabout located at the junction of Bellwood Road and Marshall Way.  The roundabout provides controlled traffic movements at the junction and also acts as a traffic calming device.

 

 

Item 7:        Bellwood Road Upgrade between Pacific Highway and Mumbler Street

                  

                   To allow for road widening and replacement of kerb and extensive relocation of utilities associated with the upgrade.

 

 

Cost Estimates for Provision of New Traffic Infrastructure

 

 

The total cost of providing the new roads infrastructure described in this report is estimated at $5,724,236.25 and will be funded 100% of total project cost through section 94 contributions.

 

Under the new contribution plan, $5,274,236 of total project cost will be funded from new section 94 contributions.  The balance of $450,000 will be funded from contributions collected under the existing plan and will be used specifically towards the construction of the Bellwood Road and Mumbler Street roundabout, the purpose for which it was collected.  Total project costs for the provision of new road infrastructure is itemised as follows:

 

Item 1:        Intersection Upgrade:  Pacific Highway and Bellwood Avenue, Bellwood

                    Total Project Cost: $1,241,876.25

 

Item 2:        Roundabout construction:  Bellwood Drive and Mumbler Street, Bellwood

                    Total Project Cost: $1,137,228.75

 

Item 3:        Intersection Upgrade:  Pacific Highway and Riverside Drive, Bellwood

                    Total Project Cost: $1,166,613.75

 

Item 4:        Construction of Road Segment between Alexandra Drive and Marshall Way

                    Total Project Cost: $774,360

 

Item 5:        Bellwood Road Upgrade between Mumbler Street and Marshall Way

                    Total Project Cost: $130,702.50

 


Item 6:        Roundabout Construction:  Bellwood Road and Marshall Way

.                   Total Project Cost: $407,655

 

Item 7:        Bellwood Road Upgrade between Mumbler Street and Pacific Highway

                    Total Project Cost: $865,800.00

 

 

Apportionment of Cost

 

Based on the traffic modelling provide to Council 29.6% of the new vehicle movements will be generated by new residential development, the majority, 70.4%, being generated by new commercial development. Therefore the apportionment of cost for the infrastructure is divided accordingly between the residential and commercial developments.

 

 

Contribution Base Rates

 

Residential development is apportioned to contribute 29.6% of the cost of provision. The base rates are established on a per person occupancy basis, with a new lot considered the equivalent of a three bedroom house. Based on Australian Bureau of Statistics Census 2006 data the occupancy rate in Nambucca Shire, for an average 3 bedroom dwelling, is 2.4 persons.  Based on a predicted population increase of 1,320 persons across the catchment, base rate is calculated at $1,182.99 per person or $2,839.17 per new residential lot.

 

Commercial development is apportioned to contribute 70.4% of the cost of provision of new road infrastructure.  The commercial base rate is established on a per vehicle space, and is calculated at $11,265.61 per space.  Alternatively an equivalent Gross Floor Area rate of $375.50 is applicable based on Councils requirement of 1 car space per 30 square metres of commercial floor area.

 

Item 1                                    Hennessey Tape Oval, Bowraville

Extension to existing amenities building to provide additional change rooms due to increases registration of junior players from across the Shire.

Total Project Cost: $76,848

S.94: 100%

 

Item 2:                                        Macksville Park, Macksville

Provision of additional undercover area adjoining existing amenities building and due to increased demand

Total Project Cost: $46,109

S.94: 100%

 

Item 3:                                          Macksville Park, Macksville

Provision of additional security storage facility due to increased demand from Shire sporting associations

Total Project Cost: $51,232

S.94: 100%

 

Item 4:                      South Macksville Park, Preston Drive South Macksville.

2 Stage development of new parkland in growing residential precinct. Park to provide informal recreation at local and district level due to strategic central location

Total Project Cost: $230,546

S.94: 100%

 

Item 5:                                        Valla Pre School, Valla Beach

Construction of new car park to meet increased traffic and parking demands

Total Project Cost: $44,827

S.94: 100%

 

Item 6:                                     Coronation Park Nambucca Heads

Replacement of existing amenities building. Apportioned s94 contribution.

Total Project Cost: $1,322,709

S.94: 25% ($330,677)

 

Item 7:                              Open Space and Community Facilities Study

Funded study to assess future facility and open space needs of Shire

Total Project Cost: $30,000

S.94: 100%

 

Item 8:                                                 Macksville Library

  Loan repayment carried

  Total: $60,000

 

Items 9 - 13:                              Cycle and Shared Path Ways

Staged implementation of Councils Adopted Cycleway Plan

Total Project Cost: $7,380,000

S.94: 20% ($1,476,000)

 

Total cost of Work Schedule is $9,242,271 with $2,346,239 costed from existing and future s.94 contributions.

Format and Methodology

The 2008 contribution plan imposes a standard base rate across the Shire taking into consideration the contributions previously collected and the expected cost of project delivery. The base rate is calculated at $705.39 per person / $1,692.38 per new lot.

 

The new rate compares favourably with the existing mean average rate across the Shire of $1,495.04 per lot, or $622.93 per person.

 

Contribution base rates applicable across the plan catchment are described at Table C.3 of the contribution plan.

 

 

Timeframe for Roads Infrastructure DeliveryContribution Catchments

Contribution catchments generally remain unchanged from the previous plan, however given that the base contribution rate is standardised across the Shire the catchments will serve the purpose of identifying level of contributions and future works program. The funds will be required to be accounted for against the contribution catchment as per the existing arrangement and in line with current Legislation.

 

 

The timeframe for the delivery of the road infrastructure detailed in this report is described in the contribution plan work schedules Table C.1 and Table C.2.

 

In summary, it is expected that the upgrade of the intersection of Bellwood Road and Pacific Highway, not including signals, will need to be undertaken in 2009, depending on the extent of commercial development. Likewise construction of the roundabout at the intersection of Bellwood Road and Mumbler Street is expected to be undertaken in 2009.  The provision of the remaining works detailed in the plan will be undertaken as development occurs.

 

 

Conclusion

 

The Draft Bellwood Local Roads and Traffic Infrastructure Developer Contribution Plan 2009 has been prepared for the express purpose of providing Council with adequate funding for the construction of new local road and traffic facilities as detailed in the contribution plan work schedules.  The contribution plan clearly demonstrates the nexus between new residential and commercial development, with the resultant increase in hourly vehicle movements across the road network; and the need for the planned road infrastructure to meet that demand.  The estimated total project costs are explained and the costs of providing the new infrastructure is reasonable and fairly apportioned between new commercial development and new residential development as has been determined by traffic modelling.  The base rates for development allow for the 100% recoupment of cost through section 94 contributions over the life of the plan.

 

CONSULTATION:

 

This section 94 contribution plan was prepared and reviewed in consultation with Council Officers from the Environmental Planning, Engineering Services and Corporate Services directorates.  The plan was subject to internal review and agreement on format and content prior to issue.

Discussed in Report

 

 

SUSTAINABILITY ASSESSMENT:

 

Section 94 Plans form an important strategic planning tool for Council and as such provide longer term sustainability of infrastructure and facility delivery.

 

 

FINANCIAL IMPLICATIONS:

 

Section 94 developer contributions represent a significant income stream for Council in assisting with the provision of new road infrastructure, where that infrastructure is required as a result of new development demands.  The provision of the road infrastructure detailed in this plan relies on developer contributions to fund the works program. However Council may determine such works are required beforehand.  As such, the roadworks may need to be funded by either Council sourcing money from general revenue or taking out a loan to fund the works and recouped under the section 94 plan.

 

Direct and indirect impact on current and future budgets

 

The impacts are detailed in the report.

 

Source of fund and any variance to working funds

 

There is no impact on working funds.

 

Attachments:

1View

12113/2009 - Concept plans for roads - Section 94 Developer Contributions:  Bellwood Local Roads

 

 

 


General Purpose Committee - 20 May 2009

Section 94 Developer Contributions:  Bellwood Local Roads and Traffic Contribution Plan 2009

Attachment 1

12113/2009 - Concept plans for roads - Section 94 Developer Contributions:  Bellwood Local Roads