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FOREWORD
FORE
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RDISBN 0 7242 9324 8
© The State of Queensland (Queensland Department ofCommunication and Information, Local Government,Planning and Sport) 2000.
February 2000
The Townsville–Thuringowa region contains theState’s largest concentration of population outsidethe southeast corner. It is the major service centre fora vast catchment — characterized by a strong anddiverse economy, and a wealth of natural assets andcultural attractions. The region is poised to continueas one of the State’s major economic developmentcentres into the next millennium.
A major challenge facing the region is the need tomanage economic development and populationgrowth so that the region’s environmental assets andrelaxed lifestyle are maintained and enhanced.
Meeting this challenge successfully will require aconcerted effort by all spheres of government andthe community. The Townsville–Thuringowa StrategyPlan (TTSP) presents the outcomes of a cooperativeplanning exercise between the Townsville andThuringowa Councils and the State Government inconsultation with the regional community.
The TTSP provides a comprehensive framework ofrecommendations incorporating policies, actions andimplementation arrangements to guide the futuregrowth and development of the region. While not abinding statutory document, the TTSP has beenformally endorsed by the State Government and theTownsville and Thuringowa Councils as the principalstrategy to guide the region into the 21st Century.Government agencies and others should be guidedby the TTSP in their planning, budgetary andprogram activities, including the delivery ofinfrastructure and services.
We are committed to ensuring that this spirit ofcooperation continues into the vital implementationphase of the TTSP.
Terry Mackenroth
Minister for Communication and Information,Local Government and Planningand Minister for Sport
Tony Mooney
Mayor of Townsville City
Les Tyrell
Mayor of Thuringowa City
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TABLE OF CONTENTS
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1. Introduction ................................................................................................ 3
2. Regional Overview and Key Issues ............................................................... 5
3. Planning Approach .................................................................................... 21
4. Vision for the Region ................................................................................. 24
5. Regional Structure Plan ............................................................................. 27
6. Regional Planning Policies ......................................................................... 306.1 Nature Conservation ........................................................................ 306.2 Natural Resources Management ...................................................... 336.3 Water Quality ................................................................................... 346.4 Air Quality ........................................................................................ 356.5 Recreation and Amenity ................................................................... 356.6 Economic Development and Major Industry .................................... 376.7 Urban Growth Management ............................................................ 386.8 Residential Development ................................................................. 396.9 Major Centres ................................................................................... 406.10 Employment Location ...................................................................... 426.11 Transport .......................................................................................... 436.12 Community Services ......................................................................... 446.13 Cultural Heritage and Development ................................................. 466.14 Water Supply .................................................................................... 476.15 Waste Management ......................................................................... 486.16 Energy Conservation ........................................................................ 49
7. Implementation, Monitoring and Review .................................................. 50
Appendix 1TTSP Committees, Working Groups and Staff ........................................... 55
Appendix 2Other TTSP Documents .............................................................................. 59
Appendix 3Glossary of Terms and Abbreviations ......................................................... 60
Notes .............................................................................................................. 62
List of Maps
Map 1 Regional Satellite Image ..................................................................... 6
Map 2 Nature Conservation Areas ............................................................... 10
Map 3 Natural Resource Areas .................................................................... 12
Map 4 Regional Structure Plan .................................................................... 29
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1. INTRODUCTION
Background, Structure and PurposeThe Townsville–Thuringowa Strategy Plan (TTSP) isthe product of a regional planning exerciseundertaken cooperatively between State and LocalGovernment with the involvement of key communityinterest groups. It forms part of the StateGovernment’s wider regional planning program forsignificant growth areas in Queensland.
The TTSP is not a statutory planning document.However it has been endorsed by both State andLocal governments as a guiding framework andresource document for the cooperative managementof population growth and economic, environmentaland social issues in the Townsville–Thuringowaregion.
The TTSP region comprises the two local governmentareas of Townsville City and Thuringowa City — the“twin cities” of North Queensland. The projectcommenced in January 1996 in response to arecommendation by the Local GovernmentCommissioner for Queensland that the JointArrangements Committee, which comprises electedrepresentatives from the two Councils, shoulddevelop a strategy to coordinate planning anddevelopment across both local government areas.
As a separate initiative at around the same time, theQueensland Department of Local Government andPlanning established a Sub-Regional Planning Groupof senior officers from State agencies and LocalGovernment and representatives from keycommunity organisations in Townsville–Thuringowa.The role of the Sub-Regional Planning Group was toconsider and coordinate economic, social,environmental and development issues, particularlythose requiring the involvement of both spheres ofgovernment.
The TTSP project was devised as an integratedapproach to addressing both sets of regionalplanning responsibilities.
The Sub-Regional Planning Group has beenresponsible for the management and coordination ofthe project and the provision of technical advice tothe Joint Arrangements Committee. The JointArrangements Committee has been responsible foroverall strategic direction and policy issues, as well asthe consideration and approval of key projectoutputs.
The State Government also conducted a separatestudy — the Townsville Industrial Land Project (TILP)— into the requirements to support major industrialdevelopment in the region. The key findings of theTILP have been incorporated in the TTSP to providean integrated framework for the management ofeconomic, social and environmental issues in theTownsville–Thuringowa region.
In addition to the TILP, a number of other significantplanning activities were progressed in parallel to theTTSP. These included:
— Townsville Central Area Development Strategyfocusing on the CBD and environs;
— Townsville Port Access Study; and
— a study into the possible relocation of theTownsville General Hospital.
The Joint Arrangements Committee and Sub-Regional Planning Group were instrumental incoordinating the activities and outputs of thesestudies with those of the TTSP.
The principal components of the TTSP are:
— a Regional Overview describing the characteristicsand key issues and values in the region;
— a Vision for the region;
— a set of Regional Planning Policies comprisinggoals, principles, priority actions and responsibleagencies to guide planning and decision makingon key regional issues;
— a Regional Structure Plan that identifies thepreferred nature and distribution of major landuses and activities in the region. The RegionalStructure Plan also includes a preferred broadsequence of development for the region to guidethe planning and investment activities ofgovernment agencies and the private sector;
— proposed arrangements for the implementation,monitoring and review of the TTSP.
The TTSP has been prepared through acomprehensive process of investigation, analysis andevaluation largely undertaken by Working Groupscomprising representatives of key governmentagencies and community organisations. Thememberships of these Working Groups, togetherwith that of the Joint Arrangements Committee, theSub-Regional Planning Group and the Project Teamare listed in Appendix 1.
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The TTSP is also based on extensive consultation andfeedback from the regional community. Theconsultation process included the preparation of aconsultation draft of the TTSP. The consultation draftwas exposed to community review for two months inlate 1998. Information on the consultation draft waswidely disseminated throughout the community, andincluded the distribution of an information brochureto every household in the region.
Appendix 2 lists the technical papers and supportingreports that were prepared as part of the TTSPprocess. These documents can be obtained from theTownsville City Council, Thuringowa City Council orthe Department of Communication and Information,Local Government, Planning and Sport in Townsville.
Appendix 3 provides a glossary of the terms andabbreviations used in the TTSP.
DisclaimerThe TTSP has been prepared in good faith basedon the best available information. Noresponsibility is taken for errors or omissions inthe TTSP or for the results of any action whichmay occur due to its use.
All plans and maps are intended to representgeneral concepts for the purpose of broad scaleregional planning. Plans and maps are notintended to identify or tie attributes or rights tospecific land parcels. Boundaries and locationsare indicative only and may be subject to furtherrefinement.
Further InformationFurther information on the TTSP and associatedimplementation activities can be obtained from:
The Regional Implementation OfficerDepartment of Communication and Information,Local Government, Planning and SportPO Box 5666 MCTownsville Q 4810
Telephone: (07) 4760 7527Facsimile: (07) 4760 7535
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2. REGIONAL OVERVIEW AND KEY ISSUES
The RegionThe Townsville–Thuringowa region comprises thelocal government areas of Townsville City andThuringowa City with a total land area of some3,715 square kilometres. The region is bounded bythe Coral Sea to the east, and by the Shires ofBurdekin, Dalrymple and Hinchinbrook to the south,west and north respectively. The extent of theTownsville–Thuringowa region is shown in Map 1.
The Townsville–Thuringowa urban area is the largestin the State outside South East Queensland. It is theprimary service centre for a vast catchment thatextends along the coast between the Whitsundayisland group in the south to Cardwell in the north,and as far west as the Northern Territory border. Theregion also provides higher order services, includinghealth and education, to Papua New Guinea andsome of the Pacific islands.
Historically, Townsville City was a relatively small,predominantly urban area surrounded byThuringowa City which was much larger in area andcontained most of the significant urban expansionareas. As a result of a report by The Office of LocalGovernment Commissioner in 1994, a number ofamendments were made to the local governmentboundaries of Townsville and Thuringowa. Thecurrent boundary between the two cities follows theBohle River in the north, and the Ross River in thesouth.
The two cities now each occupy roughly half of theregional area. Land to the south and east of theexisting urban area is part of Townsville City. Land tothe west, and north along the coast is in ThuringowaCity.
Key Issue
An agreed regional planning framework isrequired to guide decision making in relationto issues of regional interest.
HistoryThe Townsville–Thuringowa region has beenoccupied by Aboriginal people for at least 40,000years. The original groups were divided into small,named local groups, tied through religious beliefsand rituals to specific areas of land identified by aprominent landform, such as Cape Cleveland, MtElliot or Magnetic Island. Each small groupsystematically harvested its economic resources as aband, in family units or in cooperation with otherneighbouring groups depending on the season andthe availability of particular food sources. Largegatherings were occasions for religious rituals.
For Aboriginal people the physical form, language,law and spirit of their country is explained throughthe activities of ancestral beings: A carpet snakemoved down from the north and created what arenow the Palm Islands. As the carpet snake travelleddown he created first Pelorus Island then Orpheus,Fantome, Curacao and Great Palm Island. From GreatPalm Island an Old Man followed the carpet snake’stracks through Barber, Esk, Brisk, Falcon, Havana,Saddleback and Herald Islands, each of them placesthe carpet snake had made as he rested. The OldMan finally caught up with the carpet snake onMagnetic Island. Following an encounter the carpetsnake continued up the Ross River.
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The Townsville–Thuringowa region provided a richvariety of seafood, animal, birdlife, vegetable andmaterial resources for the hunter-gatherer lifestyle.Women provided most of the food as gatherers whilemen engaged in hunting, fishing and warfare. TheAboriginal groups had to devote only about 20% oftheir day to economic activities, the rest could bedevoted to religious ritual with associated art, musicand dancing, or to tool and weapon making,craftwork and resting.
The first extensive European exploration of theTownsville area was undertaken in 1860 by GeorgeDalrymple. From this exploration, Port Denison(Bowen) and the surrounding region were settled,and the way of life of the Aboriginal people waschanged dramatically. Exploration of the Townsvilleregion in 1864 located a site for a port and boiling
down works that was more accessible to pastoralleases north of the Burdekin River. In 1865, the portof Townsville was founded. The municipality ofTownsville was proclaimed the following year in1866, named after its patron, Robert Towns.
With the spread of pastoralism into the Townsvilleregion, conflict between pastoralists and Aboriginesoccurred. The Aboriginal groups resisted whitesettlement until their resistance was broken by thesuperior weapons of the colonists. A Native Policeforce was used to “disperse” and “keep out” theAborigines. By the late 1860s Aborigines were being“let in” on some stations. From the early 1870sAborigines provided a large pool of cheap labour andwere actively encouraged to work on stations in thearea. Other Aboriginal survivors of frontier violenceand introduced diseases were relocated to
Map 1: Regional Satellite Image
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government reserves like Palm Island, and allAboriginal people were controlled by “protection”legislation until relatively recent times.
The discovery of gold at Charters Towers andRavenswood in the late 1860s and early 1870sconsolidated the struggling development ofTownsville as it evolved into the port servicing thesecentres throughout the gold rush. The resultingdramatic increase in population prompted the takingup of many selections in the Townsville–Thuringowaregion and the development of communityinfrastructure. A Divisional Board was established inthe Thuringowa area in 1880, and was proclaimedThuringowa Shire Council in 1902. The population in1901 was 12,717 with 2,233 dwellings. Townsvilleachieved city status in 1902. By 1920 Townsville had25,000 residents and 4,127 dwellings, predominantlysimple workers cottages.
A key to the region’s prosperity has been itscontinued role as a transport hub, with significantmilestones being the early success of the Townsvillebased Burns Philp shipping company and theconstruction of a railway to Charters Towers in the1880s; the completion of the North Coast railwayline and the construction of the railway workshops inthe 1920s; the selection of Townsville overNormanton as the preferred port servicing successivemineral booms in Cloncurry and Mount Isa in the1900s and 1930s; and the replacement of manualsugar handling at Home Hill with a bulk sugar exportterminal in Townsville in the early 1950s.
The Townsville–Thuringowa region played animportant part in World War II as a base for the warin the Pacific, particularly during the Battle of theCoral Sea. Over 100,000 allied servicemen andwomen were based in Townsville, which became oneof the largest military bases in the Pacific region.
Since World War II, Australian air force and armybases have maintained a constant presence in thecity, with the army presence significantly increasedthrough the deployment of 3rd Brigade to LavarackBarracks in 1972. Lavarack Barracks is now thelargest army base in Australia.
Following World War II, Townsville’s populationgrowth has been stimulated by the establishment ofheavy industries (with their related constructionphase population “booms”) and major governmentinstitutions. The most notable heavy industriesestablished in Townsville have been the cement andcopper works in the 1950s, and the Yabulu nickelrefinery and related Greenvale railway line in the1970s. Other major influences were the developmentof the army barracks in the 1960s, the AustralianInstitute of Marine Science and James CookUniversity in the 1970s, and several majorCommonwealth and State government regionaloffices in the 1980s and 1990s.
Recent Growth Trends and ProspectsOver the five years to 1996 the region’s populationincreased by an average of 2,150 persons annually toreach a total estimated resident population of132,300 in June 1996 at an average annual growthrate of around 1.7%. This is consistent with longerterm growth trends which have averaged about1.8% per annum since 1986. Historically, populationgrowth in the region has tended to be influenced bysignificant regional and local events rather thansteady incremental increases.
Present indications are that the region is enteringanother economically driven growth phase based ondownstream processing and the provision of servicesto major mineral developments in its servicecatchment area including the North West MineralsProvince around Mount Isa.
The most recent population projections prepared bythe Queensland Department of Local Governmentand Planning indicate that the region’s population islikely to increase by between 38,000 and 46,000 by2011. This means that by 2011 the region’spopulation is likely to be between 175,000 and183,000.
Key Issue
The region’s population is expected toincrease by around 50,000 over the next 20years. The associated demands for housing,employment, infrastructure and services needto be managed to ensure that the region’senvironmental, economic and social valuesare maintained.
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Physical Features
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Land Form
The region consists predominantly of a low lyingcoastal plain bound by the Coral Sea and the Palumaand Hervey mountain ranges.
The coastal plain is drained by a number of rivers andcreeks that rise in the mountain ranges. Among thesethe most prominent are the Bohle, Ross, Black andAlice Rivers. The coastal plain is extremely flat insome areas and this poses drainage constraints tourban development. This flat coastal topography isbroken by a series of dramatic peaks and rockyoutcrops including Mt. Stuart, Mt Louisa, Mt Bohle,Castle Hill, Many Peaks and the Pinnacles.
The region also includes Magnetic Island with itsmountainous interior and numerous small bays andinlets, together with a number of small islands androck shoals including Rattlesnake Island and HeraldIsland.
temperatures generally peak in January and areusually accompanied by high humidity levels.Temperatures during the remainder of the year arewarm, and attract visitors from cooler southernclimates.
Rainfall occurs predominantly between Novemberand April mainly in the form of short duration, highintensity tropical storms which can cause flooding.
Predominant wind directions are from the south eastin the mornings to the north east in the afternoons.The region is occasionally affected by cyclones withattendant risks of flooding, storm surges and winddamage, all of which need to be considered inplanning for the region.
Community Profile
Climate
The region’s tropical climate is characterised byrelatively high temperatures throughout the year andpronounced wet and dry seasons. The high summer
The following summary of regional demographiccharacteristics is intended to provide a broadunderstanding of the regional community:
Age Structure
The population is characterised by a high proportionof children and young adults due to the presence ofthe Defence Force, regional public administration,tertiary education institutions and the younger familystructures of these workforces. This has implicationsfor the planning and delivery of a range of child careand family support programs as well as the provisionof public facilities in health and education.
The number of elderly people in the region isproportionally lower than other major centres ofpopulation in Queensland. However the number ofpeople over the age of 65 is increasing, comprisingsome 10,700 persons in 1996.
Aboriginal and Torres StraitIslander People
While Aborigines and Torres Strait Islanders arerecorded as comprising around 5% of the totalpopulation their actual number is considered to besignificantly higher, due to under counting in theCensus. The Aboriginal community at Palm Island(approximately 3,000) although outside the region
looks to Townsville for a number of services includinghealth, education and for family visits. Theyouthfulness of the Aboriginal and Torres StraitIslander population is a significant factor, especiallyfor education, health and employment opportunities.
Key Issue
Improved consultation mechanisms with theindigenous community are essential ifplanning and services delivery are to improveand are to be appropriate to their beliefs andvalues.
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Employment
Defence Force and other public sector employmenthas a significant impact on the economic andemployment structure of the region. The DefenceForce has a $510 million per annum input to theTownsville economy, creating some 8,500 jobs, and isan integral and important component of the region’spopulation.
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Household Occupancy
Household occupancy rates in the region aredeclining in keeping with the national trend towardssmaller household sizes as a result of the ageing ofthe population, family breakdowns and an increasein single person households.
Between 1986 and 1996 the average householdoccupancy rate fell from 3.1 to 2.7 persons perhousehold (a decrease of 13%). These changes areconsistent with State averages. The householdoccupancy rates differ between Townsville City (2.5)and Thuringowa City (3.0) reflecting differences inthe family cycles and mix of dwelling types betweenthe two areas. The result of the declining householdoccupancy rates is that new households are beingformed at a higher rate than population growth. Thetotal number of households in the region is likely toincrease by between 15,000 and 18,000 by 2011.
Key Issue
There is a need for more dwellings and agreater variety of dwelling styles toaccommodate changing population andhousehold structures.
Although the regional economy is relatively robust,unemployment levels have fluctuated between 8 and10 per cent in recent years in line with Stateaverages. Youth unemployment is of great concernand in some suburbs is as high as 30%. Effectivetraining for employment opportunities is importantto enable optimum benefits to be gained fromcurrent economic development opportunities.
Natural EnvironmentThree strongly differentiated State BiogeographicRegions meet in Townsville–Thuringowa: theBrigalow Belt North in the south; the EinasleighUplands in the west; and the Wet Tropics in thenorth. As a result the region is characterised by adiversity of landforms and natural environments.
More than a third of the region is composed ofmountainous and hilly areas. The Hervey and PalumaRanges provide a dramatic western and north-western backdrop. Other separate hills andmountains rise spectacularly out of the coastal plainto provide significant landmarks. The best known ofthese is Castle Hill which rises abruptly out of theurban area and faces the rugged profile of MagneticIsland across Cleveland Bay.
The other distinctive landsystem is the coastalprovince which runs the entire length of the region,and comprises beaches, beach ridges, mangroveestuaries, saltpans and coastal swamps. In the northof the region the coastal province is narrowcomprising only beach frontage and small estuaries.South of the Bohle River, the coastal provincebecomes very wide and includes large estuarine,saltpan and brackish wetland systems.
Between the mountain ranges and the coastalprovince lie the coastal plains which are drained by anumber of rivers and creeks, and include the Black,Bohle and Ross River coastal plains and the moreinland Anthill Plains.
Key Issue
The region’s dominant features including itsmountainous and hilly areas, coastline, riversand creeks combine to present a strongphysical image. These landscape and seascapevalues should be protected for the long termbenefit and enjoyment of the region and itsvisitors.
The main vegetation type in the region is eucalyptdominated savannah woodland and grasslands.However, the region also includes significantexamples of more diverse and denser vegetationcommunities such as beach ridge vine thickets,riparian forests along creeks and rivers, hoop pineand other semi-deciduous vine thickets on hilly firerefuge areas, and rainforests and wet sclerophyllforests on the wetter uplands of the Paluma Range,
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and at Mount Elliot in the south. The Paluma Rangeuplands are included in the Wet Tropics WorldHeritage Area.
Another major group of vegetation communities isassociated with wetland areas. These includemangrove forests in estuarine areas, samphirecommunities associated with saltpans, and aquaticplants including water lilies, sedges, grasses, andpaperbark forests associated with freshwaterwetlands.
This variety of natural habitats accommodates a widerange of flora and fauna including 53 mammalspecies, and a large number of reptiles andamphibians including 33 species of land snakes,estuarine crocodiles and a diverse range of lizard andfrog species.
Above all the region is renowned for its birdlife. Atleast 365 bird species have been seen within 50kilometres of Townsville Post Office. This incrediblevariety of bird species is due mainly to the prolificnature of the region’s wetlands. The wetlandsprovide habitat for migratory species that vary fromseason to season and from year to year. In particularthe Bowling Green Bay wetlands seasonally supportmore than 20,000 waterfowl, and almost half of thebird species known to visit the area breed in thesewetlands.
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Map 2: Nature Conservation Areas
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A number of endangered, vulnerable and rarewildlife species including mahogany gliders, dugongand cassowaries occur within the region. The regionis also home to a range of vulnerable flora speciessuch as the ant plant, and vulnerable vegetationcommunities such as broad leaf tea tree woodlands.For some significant species such as the Livistoniadrudei palm and the cotton pygmy goose, theTownsville–Thuringowa region is their last majorstronghold.
Some of the region’s more significant natureconservation areas are protected within nationalparks and other reserves. These include MagneticIsland, Paluma Range, and Bowling Green BayNational Parks; and the Cape Pallarenda andTownsville Town Common Conservation Parks. Thelowland section of Bowling Green Bay National Parkis also listed under the RAMSAR Convention as awetland of international importance.
However a number of important habitat types arepoorly represented within existing protected areas,
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and significant habitat areas with high natureconservation values occur outside of existing reserves.Map 2 shows the existing protected areas within theregion together with areas that have been identifiedas including elements of Very High natureconservation value (ie has a high priority forprotected area status), or High nature conservationvalue (ie should be retained in its natural state foroutdoor recreation, scenic amenity and natureconservation purposes but may not warrantprotected area status).
It should be noted that these latter designations arerelatively broad and, while useful for regionalplanning purposes, may need to be adjusted as moredetailed information on nature conservation values isacquired.
Key Issue
There are significant areas with importantnature conservation values that are outsideexisting conservation reserves. Planning forthe region needs to ensure that theseimportant nature conservation values areadequately protected.
The marine environment is also of great significance,as the region is partly within and adjoins the GreatBarrier Reef World Heritage Area, the Great BarrierReef Marine Park and the Queensland State MarinePark. The area has a range of marine conservationvalues including seagrass and mangrovecommunities, fringing reefs, turtle nesting areas,dugong habitat, fish nurseries and seabird, waderand raptor habitats.
The intertidal and subtidal seagrass beds andmangrove lined estuaries of Cleveland and BowlingGreen Bays form extensive baitfish grounds, andprovide a feeding and breeding habitat forcommercially and recreationally important fishspecies and other marine life. Bowling Green Bay andthe Bohle estuary are declared Fish Habitat Areas.There are also declared Dugong Protection Areas inCleveland Bay including around Magnetic Island, andin Bowling Green Bay.
Natural ResourcesThe Townsville–Thuringowa region is not endowedwith an abundance of natural resources. The region’smain natural resources are its fisheries and extractivematerials which make a substantial contribution tothe regional economy. Other natural resources suchas good agricultural land, forests and timber, andwater are less significant, and the region tends to relyon adjacent areas such as, for example, the Burdekinwhich provides horticultural produce andsupplements the region’s bulk water supplies.
Map 3 shows the region’s main natural resourceareas. Protecting these natural resource values shouldbe a high priority for planning and decision-makingin the region. The rivers, wetlands, estuaries, coastalbays, islands and reefs of the region support majorrecreational and commercial fisheries. These are ofeconomic importance to the region creating jobs andexport earnings, and are also a major recreationresource for residents and visitors.
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These fishery resources are nationally andinternationally recognised for the quality of therecreational fishing they provide, and are asubstantial attraction to tourists.
Some of the region’s important fishery resources areprotected by the Bowling Green Bay Fish HabitatArea, however there are other important fisheryresources that should also be protected.
While the region does not contain any knownworkable reserves of minerals, coal or petroleum, it isprovided with a range of significant quarry materialswhich support the regional building industry. As wellas silica, sand, quartz and gravel, the region containsan abundance of hard rock, clay and limestonedeposits. Granite quarrying has recently commencedat Hervey Range and supplies both local and exportmarkets.
Good quality agricultural land is relatively limited inextent occurring mainly on alluvial flats associatedwith rivers and creeks. Lack of adequate and reliablerainfall further limits intensive agricultural pursuits tosome dry land cane farming in the northern part ofthe region, and fruit tree cropping in theRollingstone, Majors Creek and Alligator Creek areas.The predominant agricultural pursuit is grazing ofbeef cattle on the lesser quality lands thatpredominate in the region. The climate is suitable forsome aquaculture activities which are perceived as asunrise industry, although water supply issues andconcerns about long term sustainability have notbeen resolved.
The region’s relatively low and highly seasonal rainfalllimits the availability of surface water supplies. Themain water storages are the Paluma Dam on SwampCreek in the north of the region, and the Ross River
Map 3: Natural Resource Areas
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Dam. These water supply sources are supplementedby bulk water from the Burdekin Falls Dam–ClareWeir system outside the region.
The region also has significant groundwaterresources which vary in reliability and quality.Groundwater is the main source of water forirrigation and stock watering purposes, and fordomestic use where a reticulated supply is notavailable. There are a number of groundwatersources in the region including the Bluewater sub-artesian area, within which the Black River BoreLicensing Area is subject to stringent water usecontrols to ensure a regular supply of groundwaterto the Queensland Nickel refinery. Major areas ofhigh groundwater use are around the Alice and BlackRivers, around Woodstock and Alligator Creek, andareas between the Bohle and Ross Rivers. Protectionof the quantity and quality of the groundwaterreserves in the region is important from an economicas well as environmental perspective.
Key Issue
The region’s important natural resources needto be protected. Among the most significantof these are the catchment areas of the RossRiver and Paluma Dams, the region’s extensivegroundwater reserves, extractive resources,agricultural, horticultural, forest productionand fishery resources.
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The Regional EconomyThe Townsville–Thuringowa region’s economy isdiverse and robust. Over the past ten years, theNorthern Statistical Division has experienced anincrease in the value of Gross Regional Product (ameasure of regional economic activity which includesexpenditure on goods and services produced andsold to consumers in the region, plus the value ofexports produced and sold by the region, lessimports purchased by the region) every year except1990–91 when a slight decrease of 0.3% wasrecorded at the height of the national economicrecession.
North Queensland makes a significant contributionto the Queensland economy. Over recent years therate of economic growth in North Queensland hassubstantially exceeded Queensland’s. NorthQueensland is also one of the most productive areasof the State, recording a per capita Gross RegionalProduct (GRP) of $19,076 in 1990–91, which wasmore than 10% above the equivalent figure for theState.
The key to the region’s economic stability is itsdiversity, with a wide range of industry sectorscontributing substantially to GRP. This stability meant
that Townsville–Thuringowa was able to weather the1991–92 economic recession better than many otherregions of Australia. The main industry sectors in theNorthern Statistical Division in terms of contributionto GRP in 1994–95 were:
• Public Administration and Defence (15.7%)
• Finance, Property and Business (14.1%)
• Mining (13.7%)
• Wholesale and Retail Trade (12.1%)
• Agriculture (11.3%)
• Manufacturing (11.0%).
The Public Administration and Defence sector of theeconomy has been predominant in NorthQueensland for many years, reflecting Townsville–Thuringowa’s role as the main centre for governmentadministration outside Brisbane, and the economicsignificance of the large defence presence in theregion. However as other industry sectors becomestronger the relative contribution of the PublicAdministration and Defence sector has declined. Overrecent years the fastest growing sectors of the NorthQueensland economy have been Mining which grew
The dry savannah landscapes that characterise theTownsville–Thuringowa region do not providesignificant commercial timber resources. Theseresources are generally restricted to the higherrainfall State forest areas of the Paluma Ranges,although there is also a substantial State timberplantation in the southern part of the regionadjacent to the Dalrymple Shire boundary.
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by 42% between 1993–94 and 1994–95, Agriculture(19.8%) and Recreation, Personal and Other Services(18.1%).
Key Issue
The region has a strong and diverse economyand is a major service centre for NorthQueensland, Papua New Guinea and thePacific Islands. This role needs to bemaintained and strengthened.
The mining sector has always played a significant rolein Townsville–Thuringowa’s economic development,through its role as the transport gateway and mainservice centre for the mining activities in its extensivehinterland which includes the North West MineralsProvince around Mount Isa. These locationaladvantages have resulted in the establishment ofmajor downstream processing industries inTownsville–Thuringowa including a copper refineryand nickel smelter.
All of these issues are being actively pursued. Themajor industrial land requirements have beenaddressed through the State Government’sTownsville Industrial Land Project (TILP) study, theinitial findings of which, relating to the location andextent of proposed major industrial sites, have beenintegrated into the TTSP.
Townsville–Thuringowa is also a major transport andservice centre for agricultural activities throughoutNorth Queensland. Major agricultural exports passingthrough the port include bulk sugar, meat and meatproducts, and live cattle. Opportunities for exportingfresh horticultural produce to Asia have also beenidentified, but are currently limited by the lack ofdirect international flights to Townsville airport.
There is a substantial commercial fishing industrybased in Townsville, and aquaculture is perceived bymany as a sunrise industry for the region.Downstream agriculture processing activities in theregion are limited at present, with the main onebeing the export beef processing plant at Stuart.However downstream processing of seafoods hasbeen identified as a sector with growth potential.
The manufacturing sector is strongly orientedtowards the local market. Most manufacturingenterprises are small, and a high proportion areinvolved in metal fabrication and machinery. Thechemical industries sector is similarly small and locallyoriented. Scope for significant expansion of themanufacturing sector appears limited due to thedependency of most such industries on proximity tothe larger southern markets. There may be someniche opportunities associated with largerdownstream processing activities, and Townsville–Thuringowa is well placed to act as the majordistribution and service centre for North Queenslandand Papua New Guinea.
The region also has a cluster of research andtechnology organisations such as James CookUniversity, the Australian Institute of Marine Science,CSIRO, the Great Barrier Reef Marine Park Authority,and the Department of Primary Industries. All ofthese interact with private enterprise to varyingdegrees. Separate entities, such as CooperativeResearch Centres, aim to strengthen research anddevelopment linkages between private enterprisesand public agencies.
The health sector provides a further opportunity foreconomic growth as Townsville–Thuringowa currentlyoffers the most complete and sophisticated medicaland health facilities in northern Australia. In addition,the region is the base for the Anton Brienl Centre forTropical Medicine and provides medical trainingthrough James Cook University and the region’s threemajor hospitals. Similar opportunities exist forTownsville–Thuringowa to be a major service providerin the education sector not only in North
Planned expansion of mining activities in NorthQueensland is likely to lead to the establishment ofother major downstream processing activities in theregion. One such industry, the Sun Metals zincrefinery with an estimated first stage cost of $500million, is already under construction. A number ofother likely major industrial projects have beenidentified including specialist chemical plants tosupply the regional mining industry, food processing,copper wire and other downstream coppermanufacturers, alloys and metal coatings.
Key considerations to maintaining the attractivenessof Townsville–Thuringowa to activities of this natureinclude:
— maintaining the efficiency of the Port of Townsvilleand ensuring that it is provided with good roadand rail access;
— reducing electricity costs in the region through theconstruction of a major base load power station;and
— ensuring the provision of suitably located andserviced land for major industries.
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Queensland, but also to Papua New Guinea andbeyond into Asia and the Pacific islands.
The tourism industry is an underdeveloped sector ofthe region’s economy. The recreation sector in NorthQueensland represents only 5.6% of GRP, comparedwith an equivalent of 7.1% for Queensland. Theregion’s climate, historic character and proximity to awide range of tourist attractions including the GreatBarrier Reef, Magnetic Island and Charters Towers/Ravenswood underline its potential. Poor air servicesand lack of marketing, particularly to internationalmarkets, have hampered the industry’s development.There have however been some successes particularlyin the area of events, cultural and sports tourism.This is one of the sectors which is considered to havesubstantial growth potential, along with eco-tourismand business/convention tourism.
Research and development allied to the mining,downstream processing of minerals and agriculture,
marine sciences and tropical medicine are seen as thekey knowledge-based industries of the future forTownsville–Thuringowa.
Key Issue
Major growth sectors of the economy thatshould be facilitated through a regionalgrowth management strategy include:
— transport and downstream processing ofmineral and agricultural products
— provision of higher order servicesincluding health and education
— research and development allied to miningand agriculture, marine sciences andtropical medicine
— tourism, particularly ecotourism andevents, cultural and sports tourism.
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Urban DevelopmentUrban development in the region consists of themain Townsville–Thuringowa urban area which in itsbroadest sense can be considered to include anumber of peripheral urban and rural residentialsettlements such as Mount Low, Rupertswood, OakValley and Alligator Creek, together with a number ofsmall beachfront communities such as Cungulla,Saunders Beach and Toolakea, and a large ruralresidential development at Bluewater.
Pattern of Settlement
The pattern of settlement for the main urban areahas been shaped by a range of factors including:
— topographical and environmental constraints suchas Castle Hill, Mt. Stuart, the Town Common andlow lying coastal areas;
— the availability of infrastructure such as watersupply from the Paluma and Ross River Dams, andthe Ross River itself;
— accessibility via the major transport routes linkingthe CBD to the south (Flinders and BruceHighways, and the Great Northern Railway), tothe west and north (Bruce Highway and NorthCoast Railway), and to a lesser extent the south-west (Ross River Road and Hervey Range Road);
— the locations of major industries and largeinstitutional uses such as Lavarack Barracks andthe defence training area, the air and sea ports,Stuart Prison, Yabulu nickel refinery and the like.
In recent years the majority of urban developmenthas occurred in Thuringowa City which has changedfrom being a predominantly rural-based localgovernment. Townsville City has traditionally had amore established and consolidated urban form, and
contains most of the key regional infrastructure suchas the air and sea ports, major commercial centres,hospitals and regional centres of administration.More recently, with increasing population,Thuringowa City is also gaining substantial supportinfrastructure including retail and commercialcentres.
Most of the recent urban growth has occurred in theDouglas/Annandale and Mt Louisa areas inTownsville, and the Ross River corridor and theBurdell–Mount Low–Bohle areas of Thuringowa. Thetrends have been for an incremental expansion onthe urban fringe on a large number of developmentfronts, some of which such as Rupertswood,
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Rangewood and Serene Valley–Alligator Creek, arerelatively remote from the main urban areas andassociated facilities and services.
Key Issue
Urban development should be consolidatedon a limited number of growth fronts toensure that communities are provided withtimely and cost effective infrastructure andservices.
type of development presents a number of problemsincluding reduced traffic flows, poor accessibility,adverse impacts on development in designatedcentres, pedestrian safety and amenity, and visualblight.
Key Issue
The future role and function of the TownsvilleCBD and the region’s other major centresshould be clarified through an agreed policyand hierarchy of major centres. Managingstrip commercial development is also a majorissue for the region.
Housing
The region provides a wide spectrum of residentialoptions ranging from budget house and landpackages available in the outer residential suburbs toluxury apartments with panoramic ocean views.Lifestyle options also vary from small lot inner-cityliving to rural residential areas.
However, while there is a wide choice of residentialoptions within the region, the variety of housingtypes within particular residential areas or priceranges is often quite poor, consisting predominantlyof detached houses on standard 600–1,000m2
allotments. With an aging population and changinghousehold structures, there is now a need to providea greater variety of housing choices. Some recentinitiatives such as the small lot housing at WillowsGardens suggest that greater housing choice isbecoming available in response to changingconsumer demands.
The region is also characterised by an oversupply ofrural residential land which is dispersed throughoutthe region in locations such as Alice River, Bluewater,Cungulla, Oak Valley, Black River and Alligator Creek.While rural residential development can provide anattractive lifestyle and is appropriate in some
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Retail and CommercialDevelopment
In keeping with trends observed in many other majormetropolitan and regional centres, the traditionalhub of the region, the Townsville CBD, has beendeclining in importance as other urban activitycentres emerge. The decline has been most markedin retail activity. As a result of urban expansionoccurring predominantly in a westerly direction, thetraditional CBD is becoming less accessible to anincreasing proportion of the region’s population. Thisis reflected in the emergence of major retail andservice centres at Aitkenvale, Thuringowa Central andHyde Park which have now largely supplanted theCBD’s traditional retailing functions.
The CBD retains its dominance as the focus for theregion’s commercial and administration activities.This is reflected in the fact that the CBD and environsaccount for some 26% of the region’s totalemployment, compared with a combined total ofabout 24% for Aitkenvale, Thuringowa Central andHyde Park. However there appears to be an emergingtrend for office development to locate outside theCBD.
The region’s retail and commercial activities are alsocharacterised by a proliferation of strip or ribbondevelopment along many major roads includingCharters Towers Road, Ross River Road, Bowen andIngham Roads, and parts of Dalrymple Road. This
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locations, it also presents a number of planning andenvironmental concerns. These include the difficultyof matching the unrealistic expectations of ruralresidential communities of the range of services thatshould be provided, with the inherent inefficienciesin the provision of physical and social infrastructuredue to low population densities and thresholds andexcessive distances from existing services.
The cost of housing in Townsville comparesfavourably with other major centres. In 1994, themedian house and land package cost in Townsville–Thuringowa was equivalent to the State’s mediancost, and lower than the equivalent costs in Brisbaneand Cairns by 17% and 23% respectively. Publichousing comprises around 2,200 dwellings or 4.3%of the total housing stock in the region, which isconsistent with public housing levels in other areas ofQueensland.
Housing styles in the region generally follow nationaldesign trends established in the larger southernmarkets, and do not acknowledge the designrequirements of housing for the tropics. Designfeatures such as effective cross ventilation, louvredwindows, wide roof overhangs shading walls andwindows, high set housing providing a cool shadedarea for relaxation and drying are generally ignoredwith detrimental results on energy efficiency andcomfort.
The loss of the region’s traditional architecturalcharacter has been identified as a significant concernby the community, and diminishes the distinctive
tropical image of Townsville–Thuringowa which is animportant element of community identity andpotentially a strong theme for marketing the region.
Key Issue
Action is required to maintain the region’straditional architectural character anddistinctive tropical image, and to ensure thatsites of cultural heritage significance areidentified and protected.
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Infrastructure and Services
Human Services
Human services and their associated infrastructureare generally considered to relate to programs andactivities in the broad areas of health, education,public housing, family and community support andinformation services, cultural development,recreation and public safety.
During this period of rapid change in public policiesand funding arrangements for the provision ofhuman services, it is particularly important to achievea high level of coordination between the wide rangeof community organisations and agencies at all levelsof government that provide these services. This isnecessary to ensure that community needs areidentified and met in an integrated and efficientfashion.
This is particularly so in a community such asTownsville–Thuringowa where the bulk of newdevelopment is occurring on the urban fringes whichare relatively remote from established human servicesinfrastructure. The needs of these emerging
communities and the costs associated with theexpanded provision of human services are majorissues for the community.
Key elements of the region’s human services whichhave been identified as requiring detailedconsideration and upgrading include: employmentand training options particularly for youth; familysupport services to meet the needs of a highly mobilepopulation (eg defence personnel) often isolatedfrom natural support systems; decentralisedcommunity health services, particularly Aboriginaland Torres Strait Islander health services, and adultmental health; community based facilities for peoplewith disabilities and the frail elderly; and enhancedpersonal and community safety.
However, the region is provided with a generally highlevel of human services in keeping with its role as theservice centre for the North Queensland region andbeyond. With most of the region’s population livingin the main urban centre, access to these services isrelatively high compared to other regions with amore dispersed population distribution pattern,although it does of course vary with location.
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Existing major human services infrastructure andservices available to the regional community include:
• over 200 cultural organisations providing services,cultural products and employment in the arts andcultural development fields such as dance, music,theatre, visual arts and crafts; and includingindigenous and multicultural groups
• a broad range of tertiary education opportunitiesthrough James Cook University and the BarrierReef Institute of TAFE
• higher order health services provided through twomajor public hospitals and two major privatehospitals including the Townsville General Hospitalwhich is the State’s only tertiary hospital outsideBrisbane.
Key Issue
Cultural and community services are significantcontributors to overall quality of life. Theseservices should be planned and provided inconsultation with communities to reflectcultural diversity and needs, and ensure equityof access.
Physical Infrastructure
Physical Infrastructure includes the basic communityservices of water supply, sewerage, storm drainageand waste disposal, as well as power supplies andtelecommunications.
The Townsville–Thuringowa Water Supply Board(TTWSB) is responsible for bulk water supply to theregion, with the two Councils generally responsiblefor distribution to consumers. Since 1994 the supplyof water from the two main water storages in theregion, the Ross River and Paluma Dams, has beensupplemented as required with water from theBurdekin Dam. This guaranteed new source of bulkwater supply is sufficient for the region’s projectedfuture growth, and removes a previous impedimentto the establishment of major industries in theregion.
The ready availability of water and the desire to“green” a naturally dry environment combine tocreate a high demand for water. The application of“user pays” and other demand managementprinciples, together with programs to recycle waterwill be important to maintain water use withinecologically sustainable limits.
Key Issue
Demand management and recycling programsare required to maintain water use withinenvironmentally acceptable limits.
Both Councils operate a number of wastewatertreatment schemes which provide reticulatedsewerage infrastructure to all of the main urbanareas and to coastal settlements at Mount Low,Toomulla and on Magnetic Island. The remainingcoastal villages and rural residential areas use septicsystems.
Treated wastewater is discharged to the sea and to anumber of natural waterways including the BohleRiver, Sandfly Creek and Saunders Creek. The highlyvariable seasonal flows in these waterways pose aproblem for dispersal of effluent. Land disposaloptions are being introduced as an alternative todisposal of effluent to waterways.
Key Issue
A coordinated approach to wastewatermanagement incorporating a catchment basedapproach, together with higher treatmentlevels and increased use of alternatives todisposal to waterbodies is a high priority forthe region.2.
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The short high intensity storms that punctuate theregion’s normally dry tropical climate make theprovision of underground drainage expensive anddifficult to justify. The flat topography of the coastalplains also contributes to the need for substantialsurface stormwater drainage systems. In urban areasunderground piped systems normally cater forprimary drainage (2 year Average Return Interval forresidential areas), while roads convey surcharge flowsfor higher intensity storms. Sediment loads andpollutants in the runoff waters reduce water qualityin the receiving waterways. Both Councils arecurrently preparing Stormwater Management Plansover parts of their areas to address these issues.These plans need to be prepared on a cooperativebasis as part of overall catchment managementstrategies.
Management and disposal of solid waste isundertaken separately by both Councils utilisingkerbside wheelie bin collection services and disposalby landfill at three major sites, Stuart, Alice River andDeeragun, and a number of smaller sites at MagneticIsland, Cungulla, Majors Creek, Toomulla andBluewater. Recycling processes are in place at thethree major sites. Both Councils have adopted theNational Recycling Strategy of trying to achieve a50% reduction of solid waste to landfill by the year2000, and have implemented public educationprograms. The need to upgrade waste managementpractices to reduce environmental impacts inaccordance with the requirements of theEnvironmental Protection Act suggests that aregional waste management strategy emphasisingwaste reduction, recycling and more effective wastetreatment and disposal is required to coordinate theactivities of the two Councils.
Key Issue
A regional solid waste management strategyemphasising waste reduction, recycling andmore effective waste treatment and disposalis required.
Hazardous waste disposal is also a major concern inthe wider North Queensland region. The demand forand viability of establishing a purpose built facility inNorth Queensland needs to be addressed as a matterof priority.
The region’s power supply system is integrated withthe State electricity grid. The North QueenslandElectricity Corporation monitors the region’s energydemands and upgrades the electricity network asrequired to ensure an adequate supply. The NorthQueensland region’s demand for electricity supply isabout 20% of the total State demand, however theNorth Queensland region generates only about 3.4%of the State’s total electricity supply.
Two gas turbine powered generating stations, atStuart and Yabulu, provide some 400 MW of powerat times of peak load. Both facilities are capable ofconversion to natural gas which will enable them tocontribute to base load capacity. A base load powerstation is also currently under investigation for theSun Metals zinc refinery site at Stuart. This willfacilitate the expansion of major industry in theregion by reducing energy costs which are relativelyhigh at present. The North Queensland ElectricityBoard develops the electricity reticulation networkand supplies power to consumers as needed.
In addition it appears likely that the region will beprovided with a ready supply of natural gas via aproposed pipeline from New Guinea.
Key Issue
The region needs to achieve base loadelectricity generating capacity to facilitateeconomic development. Overall energydemand should be constrained to acceptablelevels by demand management programs andthe use of alternative, low impact energysources.
Transport
Efficient and effective transport is essential toeconomic growth and development, and contributesto the well-being of the community by facilitatingsocial interaction, and access to cultural, sportingand other recreational activities.
One of the region’s significant competitiveadvantages is the strength of its transportinfrastructure and services. Townsville–Thuringowa isat the confluence of major road and rail networksserving the North Queensland region and beyond,and also provides high quality sea port and airservices.
The region is serviced by two major rail networks, theNorth Coast line between Brisbane and Cairns, andthe Mount Isa line to the west. The region
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accommodates substantial rail infrastructureassociated with the port, freight and passengerterminals, and workshops and maintenance facilities.Queensland Rail is progressively relocating majormaintenance and operational activities to a newfacility at Stuart to consolidate and simplify railoperations. Both major rail routes have also beenupgraded recently to allow heavier and moreefficient trains to operate and to reduce travellingtimes for freight and passenger trains.
Townsville–Thuringowa is also well served by theNational and State controlled road network includingthe Bruce Highway which links the region to thesouthern and northern areas of the State, and alsoprovides access between the coastal settlements inthe region, and the Flinders Highway which linksTownsville to the western areas of the State includingMount Isa. A corridor is being preserved to allow forthe future construction of a ring road betweenDouglas and Deeragun to allow through trafficmovements on these highways to bypass the mainurban areas.
The urban road network in the region is welldeveloped and is subject to continuous upgrading tomeet increases in demand for road based transport.Major urban road infrastructure projects planned forthe region include duplications of Dalrymple Roadand Thuringowa Drive, and the extension ofDalrymple Road to the west to link with the proposedring road.
upgraded their materials handling and storageinfrastructure at the port. There is a pressing need tosecure the long term road and rail access to the port.Alternative long term access routes, includingupgrading of existing road and rail access, arecurrently under investigation.
The existing Townsville airport at Garbutt is a jointcivil and military facility. The runway meets currentgrowth needs, and is sufficient to accommodate fullyloaded wide bodied jets going to any of the majorAsian destinations. The strength of the runwaycurrently restricts frequency of use although aproposed resheet of the main runway by the year2000 will alleviate these restrictions. The civil terminaland associated facilities are currently operating wellbelow capacity. Increasing the number of directinternational flights to Townsville would boost thelocal tourism industry, and enable transport of freshproduce to Asian markets. The existing airport islikely to serve the region adequately for theforeseeable future.
Passenger transport in the region is dominated by theprivate motor vehicle. The area has traditionallyexhibited a very low level of public transport usagedue to a range of factors including low levels oftraffic congestion, easy parking and the low servicelevel of the bus services. A new public transportoperator introduced substantially upgraded busservices to the main urban areas in mid-1996 under aperformance contract let by Queensland Transport.There are no commuter rail services operating in theregion.
Key Issue
The region would benefit from a moreintegrated approach to transport and land useplanning in which economic, environmentaland social objectives are achieved throughdemand management, and the varioustransport modes are considered and plannedas components of a single integratedtransport system.
Magnetic Island is linked to the mainland by apassenger ferry service between Townsville and PicnicBay which operates seven days a week and carriesapproximately 300,000 passengers per annum. Thisservice is supplemented by a seven days per weekbarge service carrying vehicles and passengersbetween Arcadia and Townsville. Both services caterto commuters and tourists.
Walking and cycling are substantially more popular inthe urban areas of the region than in most otherparts of the State. This is largely due to advantagesof topography and climate, but would also beattributable to the extensive network of bikeways inthe urban areas.
The Townsville Port is the largest deep water facilityin North Queensland. It provides major handlingfacilities for bulk and containerised cargo, and directroad and rail access to the wharfside. Export andimport throughput has been growing strongly andthe capacity of the port is being expanded by theTownsville Port Authority. Over recent times BHPMinerals and Queensland Nickel have substantially
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3. PLANNING APPROACH
Ecologically Sustainable Development
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The principles and objectives of the National Strategyfor Ecologically Sustainable Development which arebriefly outlined below, have guided the preparationof the Townsville–Thuringowa Strategy Plan.
On 7 December, 1992 the Council of AustralianGovernments endorsed the National Strategy forEcologically Sustainable Development as the broadstrategic and policy framework under whichgovernments would cooperatively make decisionsand take actions to pursue ESD in Australia.
Ecologically Sustainable Development (ESD) isdefined as using, conserving and enhancing thecommunity’s resources so that ecological processes,on which life depends, are maintained, and the totalquality of life, now and in the future, can beincreased.
The Goal of ESD is development that improves thetotal quality of life, both now and in the future, in away that maintains the ecological processes on whichlife depends.
The Core Objectives are• to enhance individual and community well-being
and welfare by following a path of economicdevelopment that safeguards the welfare of futuregenerations;
• to provide for equity within and betweengenerations;
• to protect biological diversity and maintainessential ecological processes and life-supportsystems.
The Guiding Principles are• decision making processes should effectively
integrate both long and short-term economic,environmental, social and equity considerations;
• where there are threats of serious or irreversibleenvironmental damage, lack of full scientificcertainty should not be used as a reason forpostponing measures to prevent environmentaldegradation;
• the global dimension of environmental impacts ofactions and policies should be recognised andconsidered;
• the need to develop a strong, growing anddiversified economy which can enhance thecapacity for environmental protection should berecognised;
• the need to maintain and enhance internationalcompetitiveness in an environmentally soundmanner should be recognised;
• cost effective and flexible policy instrumentsshould be adopted, such as improved valuation,pricing and incentive mechanisms;
• decisions and actions should provide for broadcommunity involvement on issues which affectthem.
The National Strategy for ESD makes it clearthat these guiding principles and coreobjectives need to be considered as a package.No objective or principle should predominateover the others. A balanced approach isrequired that takes into account all theseobjectives and principles to pursue the goal ofESD. This approach underpins the TTSP, and isalso intended to guide future implementationactivities.
Native TitleOn 3 June 1992, the High Court of Australiadelivered its judgement in the case of Mabo v. theState of Queensland declaring that the common lawof Australia recognized native title. The decisionoverturned the concept of terra nullius, (a landbelonging to no one) on which Australia’s landtenure system had been based, and recognized that,unless extinguished, indigenous property rights pre-existed and survived colonisation.
The High Court recognized that indigenous people’srights to native title had survived and that inaccordance with the Racial Discrimination Act 1975,their native title must be treated equally before thelaw with other titles that flow from the Crown.
The Commonwealth saw the judgement as providingan important opportunity to rebuild the relationshipbetween our nation and its indigenous people. Atthe end of 1993 the Commonwealth enacted the
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Native Title Act 1993. The main purpose of theNative Title Act was:
— to validate any potentially invalid grants in landand other dealings after the Racial DiscriminationAct 1975;
— to set out the rights of native title holders infuture land dealings; and
— to provide a mechanism for native title holders tohave their claims facilitated and recognized, thatis the native title claim process. Under the Act it isnot compulsory for native title holders to registertheir interests.
The Native Title Act 1993 does not give rise to orcreate native title rights. It provides for therecognition and protection of native title — anexisting common law right — by providing processesto facilitate its recognition and ensure it receives thesame amount of legal protection as other land titles.As each State and Territory is responsible for landmanagement, they needed to pass legislationcomplementary with the Commonwealth Native TitleAct to validate potentially invalid past dealings. TheNative Title (Queensland) Act 1993 provides for thevalidation of land dealings for the period 31 October1975 to 1 January 1994. From this date acts thataffect native title needed to comply with the futureact regime contained in the Commonwealth NativeTitle Act 1993.
Native title rights and interests are unique and bearlittle resemblance to tenure property rights asrepresented by Anglo-Australian property law. Nativetitle rights and interests may include, but are notlimited to:
• the right to exercise traditional responsibilities andprotect cultural heritage by visiting the land,maintaining or protecting a site, performing aritual activity, burials, law making, seeking andimparting traditional knowledge, cleaning andburning areas, keeping some people away fromcertain sites, exercising certain behaviouralroutines when visiting sites, and the collection ofmaterials such as timber, bark, stone, ochre, clay,resin and grass for making weapons, tools andceremonial articles;
• the right for certain land use by the holders ofnative title, including the right to hunt, gather,fish, traverse and camp;
• the fundamental link to the identity, selfdetermination, well being, and communitydevelopment of indigenous people;
• the protection of environmental quality throughthe principle of sustainable development and theutilisation of indigenous knowledge andexperience to achieve effective and sustainableland use management;
• the recognition and protection of the indigenoussubsistence economy and effective systems for
wildlife management and land and seamanagement;
• the participation in decision making concerningthe planning, use, management and conservationof land, water and resources;
• the integration of social, cultural, economic andenvironmental policies through joint land usemanagement regimes;
• the inclusion of specific economic measuresincluding indigenous employment and training;
• the ownership and sharing of natural resourcesincluding mining, forestry, marine and quarryproducts;
• the compensation of lawful effects upon nativetitle;
• the protection of intellectual and cultural propertyrights.
Native title was previously considered to have beenextinguished where certain interests in land had beengranted. These included various types of leasesincluding pastoral leases. However, on 23 December1996, the High Court handed down its judgement inthe Wik case — a test case on whether pastoralleases extinguished native title. It held that theQueensland pastoral leases did not necessarilyextinguish native title, and that native title rightscould/may survive to the extent that they are notinconsistent with the rights granted to pastoralistsunder their leases. The Wik decision means thatnative title can coexist with certain types of leaseholdtenure.
The original Commonwealth legislation and thesubsequent Wik judgement tried to resolve nativetitle issues, but confusion, complexity and lack ofcertainty remained. The 1998 Commonwealthamendments to the Commonwealth Native Title Act(derived from the “10 Point Plan”) were designed toresolve this lack of certainty along with a number ofother concerns and misinformation existing in thecommunity. Although the amendments did not meetwith universal approval, they provide the frameworkunder which everyone must now work.
The Commonwealth amendments also allowed theStates and Territories to establish their own processfor resolving native title issues for some futureactivities, particularly mining. The QueenslandGovernment passed native title legislation in twostages. The first stage confirmed the extinguishmentof native title on all tenures granting “exclusivepossession”. It also guaranteed the validity of those“intermediate period” acts taken by the Statebetween the date of commencement of the originalNative Title Act (1/1/94) and when the Wikjudgement was handed down (23/12/96).
The second stage of the Queensland legislationprovides a series of statutory schemes for native title
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processes in relation to future mining developments.These Queensland schemes provide alternatives tothe onerous Commonwealth Right to NegotiateProcess and involve timeframes and processes thatare far more appropriate and workable.
The amended Commonwealth legislation alsoclarified and strengthened a mechanism fornegotiated settlements through Indigenous Land UseAgreements (ILUAs) to be registered with theNational Native Title Tribunal thus providing flexibilityand certainty as well as mechanisms forenforcement. ILUAs are also strongly supported bycurrent State Government policy which seeks tonegotiate not litigate. This is being achieved throughcomprehensive agreements, negotiated with goodwill and in good faith by all interested parties.
Whether they are negotiated before or after adetermination of native title, the main benefits ofILUAs are the flexibility of their content, the legalcertainty that follows after registration and theavoidance of time consuming and expensivelitigation.
Whilst it is possible to determine areas over whichnative title may exist, there are currently noregistered determinations of native title in the areacovered by the Townsville–Thuringowa Strategy Plan.However, the Wulgurukaba people have lodged twonative title claims over National Park and USL ‘BufferZone’ on Magnetic Island.
The determination of native title rights will beresolved by processes that are clearly outside thescope of the TTSP. However, planning and decisionmaking processes in the region need to be aware ofthe potential for native title rights and interests andto incorporate appropriate mechanisms to deal withnative title issues.
Due to the uncertainties in relation to the existenceof native title in the Townsville–Thuringowa studyarea, and because this regional planning processneither confers nor denies rights to use land, the
issue of land tenure, and native title in particular, hasnot been specifically addressed in the Townsville–Thuringowa Strategy Plan.
It is important to note that nothing in thisplan should be construed as in any wayaffecting any native title rights and intereststhat may exist in the Townsville–Thuringowaregion. The TTSP supports the use ofnegotiated settlements, through ILUAs andother special purpose agreements, to resolveissues relating to native title rights andinterests.
There is a need to protect native title rightsand interests in the region. The StateGovernment should consider facilitating aRegional Protocol which could, among otherthings, reconcile indigenous and non-indigenous land use planning, developmentand management issues at the regional levelby negotiating agreed ways to deal with theinterests of traditional owners.
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4. VISION FOR THE REGION
PreambleThe Vision describes the community’s ideal futureoutcomes for the Townsville–Thuringowa region.
It consists of a brief overview together with a moredetailed description of the key elements. All elementsof the Vision are of equal importance.
OverviewTownsville–Thuringowa has emerged as the principalurban centre of North Queensland through its majoradministrative, defence, educational, cultural,industrial, health care and service functions.
It has a diverse, stable economy underpinned bystrong links to countries of Asia and the Pacific Rim,and to a vast and productive hinterland.
The community has managed to balance the impactsof growth and development with the need toconserve environmental, cultural and communityvalues which combine to ensure that residents andvisitors alike enjoy a relaxed, tropical lifestyle.
Australia’s largest tropical urban area has become ashowcase for technologies associated withclimatically responsive planning and design includingwater reuse and conservation, and energy efficiency.
Commitments to the principles of social justice andequity have resulted in a community which has astrong sense of identity and belonging where all itsmembers are able to participate fully in communitylife.
Economy
The area’s economy is both diverse and robust.
Major downstream processing industries based onthe mineral and primary production resources of theNorth Queensland region are a significantcomponent of the economy. These, together withmanufacturing and service industries, make up astrong industrial base. Knowledge based industriesallied to the mining, processing and environmentalsectors together with a vibrant tourism industry arealso major contributors to the economy.
The agriculture and aquaculture industries alsocomprise significant elements of the local economywhich is further enhanced by major governmentemployment in the areas of administration, services,education, and defence.
Townsville–Thuringowa is the primary export/importgateway for northern and western Queensland todomestic and international markets through its road,rail, air and sea links.
This economic diversity has created a wide range ofopportunities to satisfy the employmentrequirements of the community.
Natural Environment
The World Heritage areas of the Great Barrier Reefand the Paluma Range are complemented by otherkey conservation areas including The Pinnacles, Mts.Stuart and Elliott, Cape Cleveland and MagneticIsland to form a dramatic scenic rim.
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Other visually prominent features, wetlands and theextensive river systems have also been conserved aspart of an accessible network of natural areas. Thesenatural areas are highly valued by the community asdefining the physical character of the cities, and fortheir environmental, recreational and tourismbenefits.
The community’s insistence upon world’s bestpractice has ensured that high standards of air andwater quality have been achieved and aremaintained.
Recreation and Tourism
A wide range of accessible, nature-based recreationopportunities contributes to the relaxed tropicallifestyle enjoyed by residents, and also provides thebasis for a thriving eco-tourism industry.
The area has consolidated its role as the sporting andevents capital of North Queensland, and is home toseveral nationally-competitive sporting teams.Visitation associated with major sporting, culturaland recreational events is an important element ofthe local tourism industry.
Tourism developments provide a diverse range ofunique visitor experiences based on the region’sattractions and interests.
tropical agriculture, marine sciences, waterconservation and energy efficiency.
Townsville–Thuringowa is also noted for the provisionof high quality education facilities and services todomestic and international students. James CookUniversity and the other centres of education are anintegral part of the region through their mutuallybeneficial links with a wide range of communityinterest groups.
Community
The area provides a rich choice of lifestyles andpersonal development opportunities. All sectors ofthe community including children, youth and theaged have good access to a range of quality humanservices and community facilities.
The community has achieved a substantial reductionin violence and other criminal activity. Citizens feel atease and enjoy a safe, secure lifestyle.
Townsville–Thuringowa has a harmonious mix ofpeople with different cultural backgrounds. Thecultural diversity of the population is valued andcelebrated by the community. Indigenous peopleshave retained their cultural identity and are respectedas an integral part of this diverse community.
The community has built on strong traditions tobecome Australia’s foremost regional centre for thevisual and performing arts. Cultural events cater to awide catchment and are a source of pride for thelocal community.
Urban Development
The area provides a diversity of residentialenvironments ranging from vibrant inner-citylocalities to semi-rural living. Significant urbanelements such as the historic early suburbs, MagneticIsland and the coastal communities have retainedtheir character and charm, and sites of culturalheritage significance are valued and protected.
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The education sector has developed world classexpertise in several fields including applied researchassociated with mining and minerals processing,climatically responsive design, tropical medicine,
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Urban growth has been effectively managed bydetermining settlement patterns, which ensure theconservation of valuable environmental and naturalresources, and promote the cost-effective provisionof infrastructure and services.
Development is climatically responsive, characterizedby the practical application of the principles ofecologically sustainable development including waterconservation and energy efficiency. A distinctive localarchitecture has emerged, adding to the area’stropical image and attractiveness.
Major Centres
Significant retailing, commercial, social and culturalservices are co-located in a hierarchy of majorcentres, which promote accessibility and providelocal employment opportunities. All of the majorcentres have good transport links and are supportedby higher-density residential development insurrounding areas. These major centres are vibrant“people” places that provide focal points for localcommunities.
Transport
All modes are effectively integrated into a transportsystem that meets the economic, environmental andsocial objectives of the community. A well-definedroad hierarchy has been established to ensureefficient access for through and freight traffic, and tomaintain the safety and amenity of residential areas.
Freight transport links have been enhanced to meetthe demands of the local economy, and inrecognition of the area’s role as a major economicgateway.
An efficient public transport system and an extensivenetwork of safe pedestrian and cyclist routes linkingresidential areas, major centres and other highactivity areas have developed and are stronglysupported by the community.
Infrastructure
Major infrastructure requirements have beenprovided in a pro-active, environmentally responsibleand cost-effective manner to foster economicdevelopment in a highly livable city. The benefits ofthese assets to the community have been maximizedthrough planned refurbishment and maintenanceprograms.
Careful management of energy and water resourcescombined with efficient waste minimization andmanagement techniques have enabled Townsville–Thuringowa to develop as a world leader in thepractical application of ecologically sustainabledevelopment practices in a dry tropical environment.
The City Heart remains the primary focus of thecommunity and the centre where all higher-orderadministration, commercial and cultural activities areconcentrated. The City Heart is a flourishing mixed-use centre in which residential and commercialdevelopment is integrated with a wide range ofrecreational and cultural activities including boutiqueand specialty retailing to present a dynamic attractiveenvironment.
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5. REGIONAL STRUCTURE PLAN
The Regional Structure Plan (RSP) describes thepreferred broad physical form of the region for anotional long-term population of around 320,000(compared with the existing regional population ofapproximately 140,000).
The RSP is intended to provide a strategic context forthe planning, development assessment andinvestment activities of the three spheres ofgovernment and private enterprise.
It was developed by evaluating a range of regionalgrowth options against objectives and evaluationcriteria addressing environmental sustainability,natural resources management, transport, economicdevelopment, urban development, human servicesand physical infrastructure issues. It is the optimumlong-term settlement pattern for the region taking allof these issues into account.
The RSP includes a broad development sequence.This broad sequence identifies areas preferred forurban and rural residential development within thenext 15–20 years. These phase one developmentareas are generally consolidations of or extensions toexisting urban and rural residential areas, and can beprovided with supporting infrastructure and servicesrelatively efficiently. More detail regarding thepreferred development sequence for these phase oneareas will be provided through benchmarkdevelopment sequencing plans which will form partof the local government planning schemes under theIntegrated Planning Act 1997 (IPA).
The RSP also identifies other urban and ruralresidential development areas which are thepreferred areas to cater for additional longer termpopulation growth in the region (ie beyond thatwhich can be accommodated in the phase onedevelopment areas). Development of these phasetwo areas for the purposes designated in the RSPshould only occur when the regional populationapproaches the capacity of the phase onedevelopment areas.
In the interim, Local Government planning schemesshould ensure that the long term developmentpotential of the phase two development areas isprotected by preventing subdivision patterns or theestablishment of land uses which would be likely toconstrain the long term future use of the land for thepurposes designated in the RSP.
The key features of the RSP are:
— Recognition that the existing Townsville–Thuringowa urban area will be the primary focusof future growth. This is because it has thehighest level of infrastructure and services, andthe greatest potential to generate economicdevelopment and jobs.
— Encouragement of infill and fringe urbandevelopment within and adjacent to existingurban areas to promote efficient use of, and toconsolidate demand for urban infrastructure andservices.
— Further promotion of urban consolidation byencouraging increased urban densities within andaround existing and proposed major centres,including the CBD, to improve accessibility to jobsand services and enhance the vitality of centralplaces.
— Promotion of development at Burdell–Mt Low–Deeragun, over the longer term, into anintegrated urban community of approximately70,000 focused on a major centre providing a fullrange of sub-regional services and amenities.
— Establishment, in the longer term, of a newintegrated urban community of approximately55,000 at Rocky Springs also to be focused on amajor centre with a full range of sub-regionalservices and amenities.
— Limiting the extent of urban development on theBohle Plain to a population capacity ofapproximately 13,000 supported by district levelservices and amenities.
— Supporting the role of the Townsville CBD as themain centre for the region, and promoting newsub-regional centres at Burdell–Mt Low and RockySprings, to complement the existing sub-regionalcentres at Aitkenvale, Thuringowa Central andHyde Park.
— Consolidating major business and industry areasat Stuart, along the Bruce Highway betweenGarbutt and Bohle, and at the Townsville Port areain addition to the nickel refinery at Yabulu and theproposed broad-hectare industrial area atWoodstock.
— Consolidating rural residential development withinand adjacent to existing rural residential areasincluding those at the Upper Ross corridor,Bluewater and Alligator Creek.
— Limiting the extent of development in other smallcentres throughout the region to preserve theirunique characters.
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The RSP identifies two areas where even broaddesignations cannot be determined until the resultsof current planning studies are available. TheSouthbank Investigation Area contains a range ofcompeting values, and is currently being investigatedas part of the Townsville Port Access Study. Thefuture use of this area will be determined throughthe Townsville City planning scheme review processwhen the results of the port access study areavailable.
There is also a 3,500 hectare area at Woodstockshown as a Major Industry Investigation Area. Thisarea was identified through the Townsville IndustrialLand Project (TILP) as being potentially suitable toaccommodate major industries. Further moredetailed investigation is required to confirm thispotential, and to assess the demand for majorindustries to establish in this location.
The RSP provides a broad structure only. TheTownsville and Thuringowa Councils will need toundertake more detailed planning to guide thedevelopment of urban growth areas in theirrespective local government areas. This will beparticularly necessary for the major urban growthareas at Burdell–Mt Low–Deeragun, Rocky Springsand on the Bohle Plain. Some key planning issuesthat will need to be addressed in relation to each ofthese major growth areas are:
Burdell/Mt Low/Deeragun• facilitate the continued development of smaller-
scale communities at Deeragun, Bushland Beachand Burdell within the longer term context of amajor urban community of approximately 70,000focused on a sub-regional centre.
• achieve urban residential densities throughout thedesignated growth areas with higher densitiesaround a centrally located sub-regional centre.
• provide substantial environmental buffers alongthe Bohle River and its tributaries includingSaunders Creek and Stoney Creek.
• maintain and enhance the beachside characterand recreational opportunities in areas adjacent toHalifax Bay.
• minimise the detrimental impacts associated withdevelopment on the duplex soils prevalent in thearea on water quality in the Bohle River andHalifax Bay including the Bohle River Fish HabitatArea.
Rocky Springs• the future planning and development of the Rocky
Springs area will be the subject of a detailedmaster planning exercise. The purpose of themaster plan is to facilitate the development of anintegrated urban community accommodating afull range of urban uses.
• ensure that the productive capacity of the goodquality agricultural land in the area is preserveduntil it is required for urban development.
• preserve the amenity and environmental values ofMt Jack and the Sisters Mountains includingvisually prominent foothills.
• preserve significant environmental/wildlifecorridors between the Sisters Mountains and theMuntalunga Range, and between Mt Stuart andthe Sisters/Mt Elliot.
• achieve urban residential densities throughout thedesignated growth area with higher densitiesaround a centrally located sub-regional centre.
• provide substantial environmental buffers alongStuart Creek, and ensure that there are nodetrimental impacts on water quality in the RossRiver Dam.
Bohle Plain• provide substantial environmental/wildlife
corridors along the Bohle River and its tributaries.
• minimise the detrimental impacts associated withdevelopment on the duplex soils prevalent in thearea on water quality in the Bohle River andHalifax Bay including the Bohle River Fish HabitatArea.
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