Harbour Trust: Planning
The Plan: Planning Context
Planning in the Whole Harbour Context
Each of the Trust lands embodies interesting and important heritage in
its own right. However, their significance is derived in a large part
from their relationship to Sydney Harbour. Moreover, it is the harbour
itself that has aroused so much passion and debate within the community,
urging government to retain foreshore land for the public. There is now
the potential for the public to use and enjoy the harbour in ways that
have not been possible before.
Although not at the geographic centre of Sydney, the harbour gives Sydney
its identity. It is its birthplace and is known worldwide for its beauty.
It is characterised by a curious juxtaposition of bush covered headlands,
maritime facilities and industry, dwelling houses set in gardens and the
towers of the city, which create an impression of a haphazard, unplanned
city. And yet the underlying forces that have shaped this remarkable maritime
city in adapting to its natural form still have a strong presence.
The Trust lands occupy only a small part of the harbour, but they are
representative of a wide range of its natural and cultural heritage. With
the rapid changes occurring in our time, such as the redevelopment of
redundant industrial, maritime and defence facilities, it is important
to retain these places before we lose these telling traces of our past.
They provide diversity and opportunities to enrich our experience and
understanding of the harbour - helping to preserve Sydney as a great Maritime
City.
In studying and analysing the Trust lands and understanding their role
in the evolving history of the harbour, it became increasingly clear that
a whole harbour planning approach was essential to achieve the full potential
of the lands to contribute to the cultural life of the Sydney region.
Feedback from the exhibition 'Sites Unseen', the consultative advisory
committees and many of the community groups the Trust has consulted has
endorsed the whole harbour approach and the need to consider each of the
lands in a holistic manner. This plan has therefore been prepared as a
comprehensive document, which embraces all of the sites, to ensure that
the relationship of each site to the harbour and the regional planning
context is clearly reflected.
The Importance of the Harbour
In a great maritime city, the life on the land is inextricably bound
to the activities on the water. This requires access to and from the water.
Water should be considered as a place, not just something to be looked
at from the land. We need to have diversity and contrast - places of work
as well as the ability to gather by the water's edge. In a busy metropolis,
it is important to provide places with a sense of remoteness, solace and
respite for the whole community.
The role of the Trust lands in the Harbour
With the recent redevelopment of most former maritime and industrial
sites around the harbour for predominantly residential use, the Trust
lands have strategic importance for sustaining a rich and diverse maritime
city. They are well located or have particular facilities for maritime
or public uses that are becoming increasingly difficult to accommodate
around the harbour and, without which, Sydney may lose important services
or amenities.
North Head and Middle Head-Georges Heights are two of the three main
headlands that provide the seemingly extensive bushland character of the
foreshores. Restricted use of these areas by Defence has meant that much
of the remnant bushland (though fragmented) occurs here. The coastal dune
heath on the wind blown sand dunes of the old Artillery School at North
Head is particularly important because it has become so rare.
Cockatoo Island and Woolwich have three of the four remaining large dry
docks in Sydney Harbour as well as other industrial infrastructure that
is being displaced elsewhere around the harbour - primarily by residential
development.
The Trust lands have been isolated from the rest of the community. Public
access to these hitherto unknown, wonderful parts of the harbour should
be provided in a way that links other features of the harbour and the
neighbourhood as well. We therefore need to develop networks of paths
in relationship to the existing network of roads and paths, land and water
transport, and other attractions around the harbour.
While the Trust lands have many unique qualities, they also have elements
that recur up and down the harbour. These are described at Section 12
under 'Whole of Harbour Background Material'.
To fully appreciate the fortifications at Georges Heights, it is necessary
to understand them as part of the evolution of a whole system of defence
- including Fort Denison, Dawes Point and other defence installations.
The docks at Woolwich and Cockatoo are representative of the industrial
development of Sydney and as such, have associations with other sites
around the inner harbour.
The bushland at North Head and Middle Head-Georges Heights are valuable
remnants of vegetation formations and types that occurred elsewhere over
more extensive areas around the Sydney Harbour catchment and that complement
the bushland within the Sydney Harbour National Park. The planning and
interpretation of the Trust lands aims to highlight these associations.
Most people are unaware that this city of over 4 million people is at
the edge of a wild and relatively unexplored aquatic habitat - Sydney
Harbour. Two of the Trust sites (Chowder Bay and the former Marine Biological
Station at Camp Cove Beach) adjoin clean harbour waters with a rich diversity
of marine life that requires further study, protection and appreciation.
The growing importance of improving water quality will need to be taken
into consideration in the management of water run-off from the former
industrial and Defence sites of the Trust.
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Requirements of the SHFT Act
The Act (Part 2 Section 6) requires the Trust to prepare a plan within
two years of proclamation of the Act (September 2001). The Plan must accord
with the objects of the Trust, which are as follows:
- to ensure that management of Trust land contributes to enhancing the
amenity of the Sydney Harbour region
- to protect, conserve and interpret the environmental and heritage
values of Trust land
- to maximise public access to Trust land
- to establish and manage suitable Trust land as a park on behalf of
the Commonwealth as the national government
- to co-operate with other Commonwealth bodies that have a connection
with any Harbour land in managing that land
- to co-operate with New South Wales, affected councils and the community
in furthering the above objects
The plan must also accord with the principles of Ecologically Sustainable
Development.
Section 28 of the SHFT Act requires that the plan must contain the following:
- a history and description of the plan area, including an identification
of current land uses of the area or parts of the area
- an assessment of the environmental and heritage values of the area
- an assessment of the interrelationship between the plan area and the
surrounding region, including other public land in the Sydney Harbour
region and other Trust land
- objectives for the conservation and management of the area
policies in respect of the conservation and management of the area
- an identification of proposed land uses in the area or parts of the
area
- an identification of the nature of possible future owners of the area
or parts of the area
- guidelines, options (if necessary) and recommendations for the implementation
of the plan
- detailed estimates of costs that may be incurred in respect of the
area, including costs for remediation, rehabilitation and conservation
of the area
anything else required by the regulations
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Outcomes of Public Consultation
Consultation has helped the Trust to understand the communities' needs,
expectations and concerns and has guided the concepts developed in the
Plan. The scope and extent of the Trust's Consultation programme is summarized
in the Background Material to this plan and illustrated in Fig.
2.1 (PDF 98kb).
Feedback to the Trust is received in various forms such as verbal comments,
written submissions, questionnaires, website feedback forms and through
surveys undertaken by the Trust. Both quantitative and qualitative feedback
has been taken into consideration during the planning process. This is
done on a case-by-case basis, as some issues relate to the whole of harbour
planning and others are site specific.
Based on both Government and community consultation, the following is
an outline of the issues that have been identified as important to be
addressed by the Plan:
- It is important to plan for the Trust sites as a 'whole' using a
consistent framework that applies to all sites
- The Plan needs to be developed within the context of all other land
in public ownership on the harbour
- A 'whole of government' approach to planning needs to be maintained
and encouraged. This includes ensuring the Trust plans are consistent
with relevant State Government outcomes and legislation including the
Building Code of Australia, Fire Safety Regulations etc
- Ensure that the visual impact of proposals on each site is considered
in a whole of harbour context, and that the amenity of sites and views
to and from the harbour are protected
- Implementation of sustainable practices through comprehensive and
site based plans
- Recognition of the importance of biodiversity, threatened species
and natural system management. This includes issues such as soils, fire
and bushland management and the aquatic environment
- Need to protect and enhance bushland nature of the Harbour
- Recognition of the impact that activities could have on water quality
and the need for adequate stormwater management to improve water quality
of the harbour
- Integration of land use and transport to help to achieve the air
quality management goals of the NSW Government
- Identification and remediation of areas of contamination
- Preservation of the natural, cultural and historical characteristics
of the harbour
- Importance of conservation and interpretation of the military heritage
of the harbour
- Protection of the harbour from new and inappropriate residential
or commercial development
- Public access to sites to be maintained and improved, including water
access where appropriate
- Importance of aspects of public safety, security, acoustics and signage
- Importance of continuing consultation with the community, interest
groups and government agencies during the development and implementation
of the plan
- Provision of facilities for interpretation and education about the
sites
- Provision of recreational and sporting opportunities, facilities
for youth/ children and access for older people and people with disabilities
- Importance of conservation and interpretation of the Aboriginal heritage
of the Harbour
- Recognition of the Trust sites as a valuable 'National' asset and
tourist destination
- Need for working harbour facilities and land based access to working
harbour facilities
- Need to balance commercial activity and leasing arrangements with
public access and community use whilst ensuring the Trust has adequate
ongoing funding and resources
- Financial burden of implementation of the Plan should be borne by
the government in rehabilitating these sites with no burden to future
generations
Issues raised that are specific to particular sites are summarised in
the relevant site sections of the plan.
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Relationship to Other Plans and Policies
The Trust's Plan area is covered by a wide range of existing plans and
policies that have been prepared by both State Government agencies and
local government. None of these plans or policies has legal force in respect
of Trust Land Sites. However, they provide an important planning and policy
context that the Trust has reflected in its Plan. To facilitate this,
a detailed analysis of existing plans and policy documents was undertaken.
The results of these investigations and their relevance for each Trust
site area are summarised in the Plan. The full details are contained in
a supporting study - Planning Context, Harbour Trust Lands, (MG Planning
2002).
At a regional level there are policies and plans prepared by the various
State Government agencies. Some of these apply to the whole State and
aim to set long term goals. A good example is "Action for Air"
- the State Government's 25 Year Air-Quality Management Plan. Where relevant
these policies have been reflected in the Trust's whole of harbour objectives
and policies. Others, like "Sharing Sydney Harbour", the State
Government's vision for the harbour, provide more explicit guidance on
the State's strategic planning objectives for the harbour including some
of the Trust's sites. These are reflected in the Plan's site-specific
land use and environmental outcomes. An example of this is Cockatoo Island,
which has been identified by the State Government as a site to be retained
as part of Sydney's working harbour.
There are also local plans prepared by local councils, for example Mosman
Local Environmental Plan 1998. This Plan covers Rawson Park and the bushland
areas adjoining Middle Head-Georges Heights and Chowder Bay and while
it is a statutory planning instrument, its aims and objectives are relevant
to the land use and environmental outcomes for the Trust's sites and these
have also been reflected in the Plan's site-specific outcomes.
Finally, and most importantly, there are management plans prepared by
the owners of adjoining land. A good example is the Little Penguin Proposed
Critical Habitat and Recovery Plan prepared by the National Parks and
Wildlife Service for North Head. These have also been reflected in the
Plan's site-specific outcomes.
Whole of Harbour Plans and Policies
The State policies that are relevant to all or more than one of the Trust
lands are:
Sharing Sydney Harbour
(Department of Urban Affairs and Planning, 2001)
Sharing Sydney Harbour Regional Action Plan Update (Planning NSW 2003)
Action for Air
(Environment Protection Authority, 1998)
Action for Transport 2010
(Department of Transport, 1998)
NSW Biodiversity Strategy
(National Parks and Wildlife Service, 1999)
Draft State Environmental Planning Policy No. 66 - Integrating Land Use
and Transport
(DUAP, 2001)
State Environmental Planning Policy No. 56 - Sydney Harbour Foreshores
and Tributaries
(DUAP, 1998)
Sydney Regional Environmental Plan No. 14 - Eastern Beaches
(DUAP, 1988)
Sydney Regional Environmental Plan No. 23 - Sydney and Middle Harbours,
(Department of Planning, 1985)
Sydney Regional Environmental Plan No. 22 - Parramatta River
(Department of Planning, 1990)
Sydney Harbour and Parramatta River Development Control Plan (DCP) for
SREP 22 and SREP 23
(DUAP,1998)
Sydney Regional Environmental Plan No. 32 - Sydney Harbour Catchment,
Working Draft
(Planning NSW 2003)
Sydney Harbour National Park - Plan of Management
(NPWS, 1998)
State Environmental Planning Policy No. 55 - Remediation of Land
(DUAP, 1998)
Planning for Bushfire Protection
(NSW Rural Fire Service and Planning NSW, 2001)
Manly - Mosman District Bushfire Management Plan - Operations
(Bush Fire Management Committee, 2001)
Manly - Mosman District Bushfire Management Bushfire Risk Management
Plan
(Bush Fire Management Committee, 1997)
State Environmental Planning Policy No. 19 - Bushland in Urban Areas
(Department of Planning, 1986)
Sydney Harbour, Invertebrates - Intertidal Protected Area, (NSW Fisheries,
2002-2007)
North (Sydney) Harbour Aquatic Reserve
(NSW Fisheries, 1982)
Water Quality and River Flow Interim Environmental Objectives for Sydney
Harbour and Parramatta River Catchment
(EPA 1999)
Sydney Harbour Catchment Management Board's Catchment Blueprint
(2002)
Relationship to Local Plans
In addition to the specific State planning and environmental policies
there are a number of local council plans and policies that are important.
The details of these plans are contained in the Supporting Study - 'Planning
Context, Harbour Trust Lands' (MG Planning 2002).
For each site, other than the two islands, a diagram has been prepared
that summarizes the local planning context - see figure
4.3 (PDF 129kb), figure
7.3 (PDF 234kb), figure
8.3 (PDF 273kb), figure
9.2 (PDF 245kb)and figure
10.2 (PDF 244kb).
To ensure that the Trust's sites are effectively integrated with the
surrounding area the Trust will have full regard for these plans and policies
when considering any new activities.
Relationship to Commonwealth Environmental Legislation
The Commonwealth Environmental Legislation that applies to the Plan area
are:
Sydney Harbour Federation Trust Act 2001
Environment Protection and Biodiversity Conservation Act 1999
Australian Heritage Commission Act 1975
Relationship to State Environmental Legislation
In addition to the State planning and environmental policies, there are
a number of State laws that are important to the planning process and
environmental conservation. These acts do not have statutory force in
respect of the Trust's lands. However, the Trust's Plan has had regard
to the objectives of the following State acts:
Threatened Species Conservation Act 1995
Fisheries Management Act 1994
Contaminated Land Management Act 1997
Environmental Planning and Assessment Act 1979
The Heritage Act 1977
National Parks and Wildlife Act 1974
Protection of the Environment Operations Act 1997
Rural Fires Act 1997
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