Borroloola Planning Concepts - Land use objectives 2001...4 Borroloola Planning Concepts and Land Use Objectives 2001 4. PLANNING CONTEXT AND EVALUATION 4.1. INTRODUCtION In the 1800s,

20012001

Northern Territory Government

BORROLOOLAPLANNING CONCEPTS

andLAND USE OBJECTIVES

2001

Borroloola Planning Concepts and Land Use Objectives 2001 i

CONTENTS

1. PLANNING CONCEPTS AND LAND USE OBJECTIVES............................................... 11.1. INTENDED OUTCOMES ..................................................................................................... 1

2. PLANNING CONCEPTS................................................................................................... 12.1. RESIDENTIAL USE ........................................................................................................... 12.2. COMMUNITY USE............................................................................................................. 12.3. COMMERCIAL USE........................................................................................................... 12.4. INDUSTRY ....................................................................................................................... 12.5. OPEN SPACE .................................................................................................................. 1

3. LAND USE OBJECTIVES ................................................................................................ 2

4. PLANNING CONTEXT AND EVALUATION..................................................................... 44.1. INTRODUCtION................................................................................................................. 44.2. SCOPE, ADMINISTRATION AND ISSUES.............................................................................. 44.3. POPULATION AND GROWTH ............................................................................................. 44.4. EXISTING LAND USE ........................................................................................................ 54.5. LAND TENURE................................................................................................................. 54.6. FLOODING....................................................................................................................... 64.7. LAND RESOURCES .......................................................................................................... 64.8. TRANSPORTATION........................................................................................................... 6

Borroloola Planning Concepts and Land Use Objectives 2001ii

Figures

Figure 1 Borroloola Location Plan

Figure 2 Land Tenure

Figure 3 Infrastructure

Figure 4 Physical Features and 1% AEP Flood

Figure 5 Land Unit Mapping

Figure 6 Planning Concepts

Borroloola Planning Concepts and Land Use Objectives 2001 1

1. PLANNING CONCEPTS AND LANDUSE OBJECTIVES

These Planning Concepts and Land UseObjectives establish a policy framework topreserve and enhance the key attributes ofthe town. They also address currentdeficiencies and points of conflict, andprovide for future town growth to occur in acoordinated and economic manner.

1.1. INTENDED OUTCOMES

Together, the Planning Concepts and LandUse Objectives advance the followingoutcomes for land use in Borroloola:� a strategic and performance based

approach to land use and developmentdecisions;

� improved living conditions through apattern of appropriately locatedresidential, commercial and industrialland uses that show compatibilitybetween activities, and the timelyprovision of serviced land for theseuses;

� protection of land and water resources;� promotion of a town identity based on

historic settlement and high qualityopen space;

� protection of vegetation and preventionof land degradation.

2. PLANNING CONCEPTSBorroloola Planning Concepts 2001The Planning Concepts for Borroloola(Figure 6), which is an incorporateddocument within the meaning of thePlanning Act, illustrate the recommendedlocations for major land uses toaccommodate current needs and thefuture growth of the community. Thefollowing commentary provides therationale for the concepts.

2.1. RESIDENTIAL USE

Two primary areas are indicated for futureresidential use. One is the landsurrounding the power station and theadjacent light industrial sites. The other isthe land above the 1% AEP flood levelwhich is located directly to the south of theNew Town residential area. Layout anddesign of both of these areas would haveto be cognisant of the topography and landcapability. It should also be noted thatmost of the Yanyula Camp area is belowthe 1% AEP flood level. Any additionalhousing in this area should be flood-proofed or designed to avoid inundation.

2.2. COMMUNITY USE

The major community use areas includethe airport, the museum, the Council office,the school and community educationcentre, the borefield, the power station, thehealth clinic, the police station andadjacent lands.

2.3. COMMERCIAL USE

This use is focused along Robinson Road,both in the Old Town and New Townareas. On the Planning Concepts, theseareas are indicated for commercial use,however it is recognised that this land alsohas potential for residential, community,and tourist uses.

Commercial land could be furtherdeveloped between Robinson Road andthe airport in the short term, as surveyedlots are located in this area. Because ofthe proximity of this area to the airport,some attention may have to be given todust and noise abatement measures toreduce the impact of aircraft movements.

2.4. INDUSTRY

The existing industrial uses, which arelocated on Robinson Road and in the NewTown, could eventually be relocated to anindicated industrial area on land adjacentto the racecourse south of the CarpentariaHighway. This would provide land in theNew Town for additional residential andcommercial uses.The truck service depot, BarklyEarthmovers and the Council depot whichare all within the 1% AEP shouldeventually be relocated, to provide a moreattractive “front door” to the town.

2.5. OPEN SPACE

This classification includes land forrecreational pursuits and all land notproposed for other use (Figure 6).The racecourse and cricket grounds are sodesignated, as well as the school oval andthe multi-purpose paved courts just northof the school.

An open space corridor will be providedalong Rocky Creek directly to the south ofthe Yanyula living area. This corridor willserve to link the two existing open spacezones indicated in the Borroloola TownPlan 1984. A Council swimming pool isproposed for Lot 826 on land indicatedwithin the Planning Concepts as openspace.

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3. LAND USE OBJECTIVESThe Land Use Objectives should be readin conjunction with the Planning Concepts(Figure 6) and the supporting informationin section 4 and in the context of thedevelopment provisions of the NorthernTerritory Planning Scheme containedwithin the Borroloola Town Plan 1981.

The Land Use Objectives are shownshaded and it is only those words whichare “made” by the Minister as Land UseObjectives within the meaning of thePlanning Act.

The land use objectives for Borroloola are:

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

To enhance the quality of life ofBorroloola’s residents by encouraging theprovision of appropriate services andcommunity facilities.

To provide for appropriately locatedrecreational and tourism development.

To protect and enhance the natural,cultural and historical resources of thetown for the benefit of residents andvisitors.

To optimise the use of existing servicesand infrastructure, and promote theefficient provision of services andinfrastructure.

Land Use Objectives specific to particularissues are identified below. Somesuggestions as to how they may beachieved are offered.

Urban Structure and Design

To provide an adequate supply of suitablylocated urban residential land.This can be achieved by:� provision of additional land for

residential development on areasadjacent to the power station and onland directly to the south of the existingNew Town residential area (Figure 6).

� ensuring that the minimum floor levelfor habitable rooms within dwellings is300mm above the level of the 1% AEPflood.

To encourage the development of tourist-related facilities at strategic locations.This can be achieved by:

� implementation of the NorthernTerritory Tourism DevelopmentMasterplan and the Borroloolacomponent of the Katherine RegionalTourism Development Plan.

� provision of adequate land suitable fortourist-related facilities within closeproximity of Robinson Road (Figure 6).

To provide an appropriate location forindustrial activities.This can be achieved by encouraging thedevelopment of a new industrial area onland adjacent to the racecourse south ofthe Carpentaria Highway (Figure 6), andthe relocation over time of industry to it.

Culture and Lifestyle

To increase the appeal of the town forresidents and visitors through the provisionof community services and recreationalfacilities.Such facilities may include:� public toilets, rest areas, appropriate

signage and shaded pedestrian links;� parking areas for visitors with

caravans;� day-use areas on the McArthur River

adjacent to the boat ramps;� a public swimming pool;� visitor facilities; and� an interconnected open space network

within the town.

Environment and Conservation

To minimise the impact of development onwater supply areas.This can be achieved by:� prohibiting all but low density

residential development which use anappropriate sewerage system withinthe aquifer recharge area (Figure 3).

� ensuring that no development occurswithin close proximity of the townbores to the west of the New Townresidential subdivision (Figure 6).

To protect vegetation which has significantecological or amenity value.The removal of vegetation from land with aslope greater than 10% is discouraged.The formulation of land clearing guidelinesand land use controls will assist in theprotection of vegetation of land vulnerableto degradation.

To protect the conservation and heritagevalues of Borroloola and the region.

Borroloola Planning Concepts and Land Use Objectives 2001 3

This can be achieved by encouraging theconservation and enhancement of items,structures and places of historical,ecological or cultural significance.

Transport and InfrastructureTo develop infrastructure that effectivelymeets the needs of the community.Future planned infrastructure may include:

� a town camp sewage disposal systemto include all developments in thetown;

� sealing the northern road to thecemetery, rubbish dump and BingBong Road; and

� upgrading of the Wollogorang Roadand the Burketown crossing.

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4. PLANNING CONTEXT ANDEVALUATION

4.1. INTRODUCtION

In the 1800s, Borroloola was a crossroadsfor the legendary pastoralists who drovecattle from Queensland along the trackspioneered by Leichhardt in 1845 andGregory in 1856. Favourable reports onthe suitability of the Gulf region for grazingled to the establishment of stations suchas Wollogorang, Brunette Downs,McArthur River, Bauhinia and Glencoe.Prospectors also passed through en routeto mineral deposits across the Territoryand in the Kimberleys. Settlers also trickledinto the area over this period, whenBorroloola was a significant port at thehead of tidal navigation on the McArthurRiver.

A police outpost was established atBorroloola in 1886 to control some of themore rowdy rogues who preyed ontravelling prospectors and graziers. Theregion has continued to be noted for itscharacters. However, economic activity inthe area clearly displays a cyclical theme,with periods of high expectation andoptimistic projections followed by periodsof decline and lethargy. The communitylanguished somewhat once the trackthrough Camooweal and the BarklyTablelands became the preferred routeinto the Territory from the east in the early1900s. But the Carpentaria Highway waseventually sealed to Borroloola in 1968 andthe community has endured, celebrating itscentenary in 1985.

The role of Borroloola as a service centrefor the Gulf Region is now recognised.As shown on Figure 1, it is centrallylocated near the junction of roads north toRoper Bar, west to Daly Waters(Carpentaria Highway) and east throughWollogorang to Queensland. Thecommunity is approximately 50 km fromthe mouth of the McArthur River on theGulf of Carpentaria. It has become a well-known destination for fishermen and animportant service centre for Gulf Aboriginalcommunities, tourists and the mining andpastoral industries.

4.2. SCOPE, ADMINISTRATION AND ISSUES

The area covered by these PlanningConcepts and Land Use Objectives (“the

policy area”) is shown on Figure 2. Itincludes the area within the Town ofBorroloola, the Mara Aboriginal living areain the Narwinbi Aboriginal Land and NTPortions 3588 and 3589.

Within the town boundary, the BorroloolaCommunity Government Council, createdunder the Local Government Act, providesa range of services, including the provisionand maintenance of housing, parks andrecreation facilities, roads and boat ramps,tourist promotion, rubbish and littercollection.

The Rrumburriya Malandari AboriginalCouncil administers the Yanyula, Mara andGarawa 1 Aboriginal living areas, andprovides contract services in the townarea. The Garawa 2 camp is selfadministered with funds being channelledthrough the Borroloola CommunityGovernment Council.

Outside the southern boundary of thetown, two lots: NT Portions 3588 and 3589are held by the Borroloola Amateur RaceClub Inc. and the Borroloola Cricket andSporting Club, respectively, as CrownLeases in Perpetuity. The remainder of theland outside the town boundary is ownedand administered by the Northern LandCouncil in trust.

The Borroloola Town Plan, gazetted inApril 1984, established a controlframework for developments within thetown by setting out permitted and consentland uses. The Gulf Region Land Use andDevelopment Study was declared inOctober 1991 and contains planning anddevelopment objectives for the largerregion surrounding Borroloola.

This exercise has reviewed current needsof the community, prospects fordevelopment as well as ongoing activities,and the increasing tourist interest in theregion. Issues identified throughconsultation with the public and variousgovernment agencies provided the basisfor developing the Planning Concepts andformulating the Land Use Objectives.

4.3. POPULATION AND GROWTH

The Department of Local Governmentestimates the population of Borroloolaincluding outstations and an annualised

Borroloola Planning Concepts and Land Use Objectives 2001 5

measure of tourists to be approximately900 persons as at June 2000.1

Commencement of operations at theMcArthur River Mine has not made a largedifference to the level of population oreconomic activity in the town, as the bulkof the mining workforce is flown directly tothe minesite from Darwin. Some of themine maintenance staff live in Borroloola.In addition, Hampton Transport Services,a Darwin-based firm, has contracted tohaul concentrate from the mine to amarine shipping terminal on the coastnorth of Borroloola, and has established atruck service depot for their road trains inthe southern section of the town, oppositethe Council depot.

No major growth impetus is anticipated toimpact Borroloola in the near future,although there could be somedevelopment resulting from increasedtourism into the region.

4.4. EXISTING LAND USE

There are two distinct areas in the town:north of, and south of, Rocky Creek, whichdischarges into the McArthur River fromthe west. The “Old Town” area lies southof Rocky Creek and accommodates theCommunity Government Council offices,depot and residences, a Health clinic, theBorroloola Inn, the McArthur RiverCaravan Park, the historic Old PoliceStation, the Rrumburriya Malandari CouncilAboriginal Corporation (RMAC) office, aservice station and shop, and a number ofindustrial uses, including the service depotfor the McArthur River Mine concentrateroad trains. The aerodrome is also locatedhere.

Borroloola’s primary residential area lies tothe north of Rocky Creek in the “NewTown”, along with the Yanyula Aboriginalliving area, the school and communityeducation centre, the health centre,Borroloola Holiday Village, the powerstation, police station, some industrialuses, shops and the post office. The townborefield adjoins the residential area(Figure 3). Currently, an Aboriginalwomen’s shelter is under construction onthe portion of Lot 595 adjacent to thepolice station.

1 NT Grants Commission 3 year average1998/2001

Two other Aboriginal living areas, Garawa1 and Garawa 2, are found within the town,east of the McArthur River and a third,Mara, is located just outside the north-western boundary of the town. Theracecourse and cricket grounds areimmediately south of the CarpentariaHighway partially inside and outside thetown boundary.

Industrial activity is established at bothends of the Town. On the southernapproach, Hampton Transport’s truckservice depot is located next to BarklyEarthmovers, across Robinson Road fromthe Council depot. H&R Developments’yard is just north of the Council offices. Atthe north end of the community, near thepower generation site are a couple of otherindustrial operations.

Developed, formal recreational open spacein the community is limited, with Councilmulti-purpose courts located just north ofthe school. An oval is established on theschool grounds, and the cricket club andracecourse are to be found on the southside of the Carpentaria Highway. Two boatramps provide access to the McArthurRiver, at the mouth of Rocky Creek andbehind the Council depot.

King Ash Bay (Batten Point) on theMcArthur River, some 40 km north-east ofBorroloola outside the policy area, is thesite of major seasonal recreational fishing,with facilities provided and administered bythe Borroloola Boat and Fishing Club. Ahalf kilometre long strip on the north bankof the river accommodates up to400 campers during the height of the Dryseason.

4.5. LAND TENURE

The bulk of the land within the townboundary is vacant Crown land as shownon Figure 2. There is a good deal ofdisparity between current tenure andoccupancy, with a number of licensed andunlicensed occupations on Crown land.The surveyed lot pattern in the Old Town isof little relevance for the most part, with theairport now occupying part of the area, andland erosion into Rocky Creek effectivelyremoving those lots west and south of theOld Police Station.

The Aboriginal living areas within the townare held under Crown Lease in Perpetuity.The Rrumbuurriya Malandari Housing

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Association also has freehold title overeight other lots within the town, which aredeveloped for residential use, and oneunder Perpetual Lease for office use.

Infrastructure and Community FacilitiesWater supply to the town is provided byPAWA from 5 bores located just west ofthe New Town residential subdivision.Three of these are inside the townboundary (Figure 3), and two are outside.Water is pumped to a storage tank on TrigHill where it is treated. Water supply doesnot appear to pose a significant constraintto additional development in the town.

Water is reticulated to the developed areasof the town on the west side of theMcArthur River and to the Mara Aboriginalliving area. A bore water supply serves theGarawa 1 and 2 camp areas. The aquiferrecharge area is located to the north of thetown (Figure 3). To adequately protect thisresource, only low density residentialdevelopments which use appropriatesewerage systems should be permittedwithin the aquifer recharge area. Industrialand higher density developments shouldonly be located outside the recharge area.Sewage is presently disposed of throughindividual septic tanks and transpirationbeds on each block. The primary NewTown residential area north of RockyCreek has a shallow soil cover whichposes problems for normal septic tankdisposal. ATSIC has undertaken toconstruct treatment works for effluent fromthe camps. In February 2000, sewage fromYanyula and the two Garawa camps wasconnected to a lagoon system on landsouth of the racecourse outside the town.The second stage of this system willextend the trunk main to the Mara camp,and also pick up non-Aboriginal residentialand commercial areas north of RockyCreek.

4.6. FLOODING

Parts of the Town of Borroloola are locatedin areas subject to flooding from theMcArthur River and Rocky Creek. Figure4 illustrates the extent of anticipatedflooding from a 1% AEP flood event (1 in100 Annual Exceedance Probability = thelikelihood of occurrence of a flood of thismagnitude or larger in any one year,expressed as a percentage). Although theextent of the Maximum Probable Flood hasyet to be determined, it should be notedthat developments above the 1% AEP

flood level, but below the level of theMaximum Probable Flood could also beinundated.

The minimum floor level for habitablerooms within dwellings in this area is 300mm above the level of the 1% AEP floodas required by the Northern TerritoryBuilding Regulations 1993. All emergencyand essential services should be locatedoutside the level of the 1% AEP flood.All other proposed developments in thearea which would be inundated by a1% AEP flood should take steps to protectagainst flood waters, by building up thesite, and/or other relevant flood proofingmeasures. The latter could include the useof piers or split-level/two storeyconstruction, with ancillary, less essential,activities at the lower level, or the use ofconstruction methods and materials, whichwould exclude flood waters from entering abuilding, or which resist deteriorationduring inundation.

Existing residential uses, essentialservices, service stations and fuel depots,which are below the 1% AEP flood levelcan remain where and as they are, butrelocation or flood-proofing isrecommended and encouraged.

4.7. LAND RESOURCES

The mapping of soils, vegetation andlandform characteristics are presented asland units, which provide a guide to thecapability of land to support various landuses, and as an indication of wheredegradation may occur as a result ofinappropriate land use (Figure 5). Soil,vegetation and landform characteristicspose a significant constraint to additionaldevelopment in the town. This isparticularly true in southern areas of thetown (including Old Town), which possessrelatively large areas of eroding, cracking,and flood plain soils that are not desirablefor residential development.

4.8. TRANSPORTATION

Borroloola is located on the CarpentariaHighway, which crosses the southernportion of the town to the McArthur River.This road is sealed one lane wide fromDaly Waters to the McArthur River mine,and two lanes wide from the mine toBorroloola. Causeways provide accessacross the McArthur River channels to theeastern portion of the town and the

Borroloola Planning Concepts and Land Use Objectives 2001 7

Wollogorang Road carries on east fromthere to Queensland. The Department ofTransport and Works maintains theseroads. No plans are current for upgradingthese roads, although investigations havebeen carried out for eventually bridging theriver at or near the present crossing.

All other roads within the town are theresponsibility of the Council. An unsealedgravel road leads north out of the town offSearcy Street to the rubbish dump andcemetery, and on towards the Bing BongRoad and King Ash Bay (Batten Point) onthe McArthur River. The two-lane sealedBing Bong Road bypasses the town on thewest, providing access from the McArthurRiver mine to the port and concentrateloading facility on the Gulf coast, west ofthe Sir Edward Pellew Islands.

Within the town, the principal collector,Robinson Road, runs north from theCarpentaria Highway approximately fourkilometres to the Mara Camp, crossingRocky Creek at about the 2.4 km point.Several local streets provide access offRobinson Road to residential, service andindustrial areas.

The 1300 m sealed airstrip in the OldTown area provides daylight access to thecommunity by air with a scheduled serviceto/from Darwin.