Town Planning Report
Bulli Creek Solar Farm
Gore Highway, Bulli Creek
Prepared for: Solar Choice Pty Ltd
Date: Jan-14
RPS Ref: PR119938-3
rpsgroup.com.au Town Planning Report Bulli Creek Solar Farm Gore Highway, Bulli Creek
Important Note
Apart from fair dealing for the purposes of private study, research, criticism, or review as permitted under the Copyright Act, no part of this report, its attachments or appendices may be reproduced by any process without the written consent of RPS Australia East Pty Ltd. All enquiries should be directed to RPS Australia East Pty Ltd.
We have prepared this report for the sole purposes of Solar Choice Pty Ltd (“ Client ”) for the specific purpose of making a Development Application (“ Purpose ”). This report is strictly limited to the purpose and the facts and matters stated in it and does not apply directly or indirectly and will not be used for any other application, purpose, use or matter.
In preparing this report we have made certain assumptions. We have assumed that all information and documents provided to us by the Client or as a result of a specific request or enquiry were complete, accurate and up-to-date. Where we have obtained information from a government register or database, we have assumed that the information is accurate. Where an assumption has been made, we have not made any independent investigations with respect to the matters the subject of that assumption. We are not aware of any reason why any of the assumptions are incorrect.
This report is presented without the assumption of a duty of care to any other person (other than the Client) (“ Third Party ”). The report may not contain sufficient information for the purposes of a Third Party or for other uses. Without the prior written consent of RPS Australia East Pty Ltd:
this report may not be relied on by a Third Party; and RPS Australia East Pty Ltd will not be liable to a Third Party for any loss, damage, liability or claim arising out of or incidental to a Third Party publishing, using or relying on the facts, content, opinions or subject matter contained in this report.
If a Third Party uses or relies on the facts, content, opinions or subject matter contained in this report with or without the consent of RPS Australia East Pty Ltd, RPS Australia East Pty Ltd disclaims all risk and the Third Party assumes all risk and releases and indemnifies and agrees to keep indemnified RPS Australia East Pty Ltd from any loss, damage, claim or liability arising directly or indirectly from the use of or reliance on this report.
In this note, a reference to loss and damage includes past and prospective economic loss, loss of profits, damage to property, injury to any person (including death) costs and expenses incurred in taking measures to prevent, mitigate or rectify any harm, loss of opportunity, legal costs, compensation, interest and any other direct, indirect, consequential or financial or other loss.
RPS Project Team Contact Information
RPS Reference: PR119938-3 RPS Office: RPS Job Name: Gore Highway, Bulli Creek T: 07 4632 2511 Document Title: Bulli Creek Solar Farm W www.rpsgroup.com.au Document Type: Town Planning Report ACN: 44 140 292 762 RPS Contact: James Juhasz Revision History
Version Date Purpose Author Reviewer Issue Date 0 - SPA Template v2.1 - - - 1 Jan-14 RPS Initial Draft Kathleen Hunter James Juhasz - A Jan-14 RPS Initial Draft Kathleen Hunter Brad Jones -
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Town Planning Report Bulli Creek Solar Farm Gore Highway, Bulli Creek
Contents
1. SUMMARY ...... 1 2. SITE DESCRIPTION ...... 9 2.1 Site Analysis ...... 9 2.2 Surrounding Land Uses ...... 10 3. DEVELOPMENT DESCRIPTION ...... 11 3.1 General Description...... 11 3.2 Site Layout ...... 11 3.3 Development Parameters ...... 13 4. KEY PLANNING ISSUES ...... 20 4.1 State Planning Issues...... 20 4.2 Local Planning Issues ...... 20 5. PLANNING ASSESSMENT ...... 22 5.1 State Planning Requirements ...... 22 5.2 Local Planning Requirements ...... 25 6. CONCLUSION ...... 31
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Town Planning Report Bulli Creek Solar Farm Gore Highway, Bulli Creek
Figures
Figure 1: Locality Plan ...... 5
Figure 2: Cadastral Plan ...... 6
Figure 3: Zoning Plan ...... 7
Figure 4: Aerial Photograph ...... 8
Figure 5 Proposed Development Area ...... 13
Figure 6: Indicative sketch of Battery Storage Buildings ...... 14
Figure 7: Indicative sketch of solar frame ...... 15
Figure 8: 330kV line crossing over Gore Hwy and heading north...... 17
Figure 9: 330kV transmission line heading north to Bulli Creek substation, joined by 132kV line from Goondiwindi approx 3km south of substation ...... 17
Figure 10: the Bulli Creek substation showing entrance of both the 330kV transmission line from the east, and the 132kV line from Goondiwindi to the right...... 18
Figure 11: showing indicative distribution of inverter houses in a solar farm...... 18
Figure 12: Indicative image of Inverter House Dimensions...... 19
Appendices Appendix A IDAS Forms and Owner’s Consent Appendix B Searches Appendix C Ecological Assessment Appendix D Proposal Plans Appendix E Council’s Prelodgement Meeting Minutes Appendix F SDAP Code Responses Appendix G Code Responses
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1. Summary
Solar Choice Pty Ltd (‘the Applicant’) has lodged a development application that seeks approval to establish a solar farm at Bulli Creek, located approximately 35 kilometres west of Millmerran. The Toowoomba Regional Council (‘Council) subsequently issued a Not Properly Made Notice to the Applicant on 21 November, 2013.
The Applicant has engaged RPS to prepare a response to the matters raised in the Not Properly Made Notice. The following town planning report and supporting material represents a complete response to the Not Properly Made Notice. To this end, it is requested that Council now proceeds to accept the development application and issue an Acknowledgement Notice.
As stated above, the development application seeks development approval to establish a solar farm at Bulli Creek, located approximately 35 kilometres west of Millmerran. Particularly, the development application seeks approval for a Development Permit for Material Change of Use for Utility Installation (Solar Farm).
The development application is made over land which consists of three (3) adjoining cattle grazing properties totalling 5,382.75 hectares. The land is described in the table below and depicted at Figure 1: Locality Plan and Figure 2: Cadastral Plan.
Land Holding Lot and Plan Description Area (hectares) Karriba Lot 5 on DY 1025 & Lot 37 on DY 1103 1,963.19 Minnaminane Lot 4 on DY 1024 1,977.766 Balinga Lot 39 on DY 916 1,441.7938
TOTAL 5,382.7498
The Applicant proposes to establish a solar farm that will, at ultimate capacity, use solar energy to generate up to 2.5 Giga Watts of electricity that will be sold directly and/or stored for later sale into the national electricity market. The maximum generation that can be accepted at the 330kV Bulli Creek substation will be determined by studies conducted with Powerlink and AEMO.
The Applicant has advised that there are at least three different classes of mounting structure technologies that could be used for this project, however, the technology that will ultimately be used to harvest the solar energy can only be selected at the time of the financial investment decision. To this end, consistent with discussions conducted with Toowoomba Regional Council, this development application seeks to establish a maximum development envelope that will represent the most intensive of the three (3) technologies that are available to the Applicant. This will allow for a comprehensive assessment to be undertaken by all stakeholders while providing the Applicant with the flexibility to select the final solar technology at the time of the financial investment decision.
Under the provisions of the Toowoomba Regional Planning Scheme 2012 (the Planning Scheme), the site is located within the Rural – 200 Hectare Precinct, and is mapped within the Biodiversity Areas, Bushfire Hazard (Medium Risk) and Good Quality Agricultural Land Overlays. In accordance with Council’s Prelodgement Meeting Minutes (Appendix E), the proposal is defined as a ‘Utility Installation’. On Council’s advice, the proposal is subject to Impact Assessment and all associated procedures including public notification.
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The proposed development has been assessed against the relevant planning instruments. In summary, the key planning issues that have been identified and addressed herein are:
Key Issue Response Land Abutting a State Controlled Road The Gore Highway dissects the subject site. Given the nature of the subject site, post construction, the land use is unlikely to have an impact on the safety or efficiency of the State Controlled Road network given that the solar farm is unlikely to be continually open to the public (though occasional open days may be conducted) and will likely directly employ a permanent workforce of less than twenty-five (25) people. To this end the impact of the land use (once operational) on the external road will not materially exceed the current collective impact that is generated by the existing rural land uses. Additionally, the solar farm will be screened to the Gore Highway by way of vegetated landscape strip will traverse the subject sites frontage to the Gore Highway. Notwithstanding the above, impacts will be evident during the construction period. Further discussion is provided at Section 3.3.4 regarding road traffic impacts during the construction phase. Particular development on SCL or The subject site, at this stage, is partially mapped as Potential potential SCL Strategic Cropping Land. At the time of lodgement, the subject site is partially mapped as Potential Strategic Cropping Land (SCL). However, it is noted that the consultation is currently being completed with the Department and relevant Minister with a view to amending the SCL trigger map to excise the areas that are not highly suitable for cropping. The development application will still continue to be referred to the Department of State Development, Infrastructure and Planning (DSDIP) to assess Strategic Cropping Land matters. Impact of proposal on the rural amenity The use of the subject site for the purposes of a solar farm will not and character compromise the existing level of rural amenity and character within the surrounding area because: the subject site will be screened to the Gore Highway via a fifteen (15) metre wide buffer that will be landscaped to provide a visual screen between the road network and the solar farm; dense bushland adjoins the north-western, southern and western boundaries of the subject land and provides a visual screen between the subject site and surrounding properties; buildings and structures will not be constructed within twenty (20) metres of the common boundary of the rural properties that adjoin the north-eastern boundary of the subject site; and the residences that are located on the properties adjoining the north-eastern boundary are screened by a natural vegetated ridge.
This report provides greater detail on the nature of the proposal and provides an assessment of the proposal against the intents and assessment criteria of the relevant statutory planning documents. Full details of the proposal, site and the relevant planning framework are set out in Table 1 Development Summary. Approval is recommended subject to reasonable and relevant conditions.
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Table 1 Development Summary
Site Details Address Gore Highway, Bulli Creek Description “Karriba” – Lot 5 on DY 1025 & Lot 37 on DY 1103 “Minnaminane” – Lot 4 on DY 1024 “Balinga” – Lot 39 on DY 916 Site Area 5,382.75 hectares Owner Lot 5 on DY1025 - David Morris Anderson Lot 37 on DY1103 - David Morris Anderson Lot 4 on DY1024 - Scott Kenneth Glasser Lot 39 on DY916 - Robert Daventry Grieve Tenure Fee Simple Easements Easement Y on SP109312 (Lot 37 on DY1103) Easement U on SP109199 (Lot 4 on DY1024) Local Government Toowoomba Regional Council Parish Bulli Application Details Project Description Utility Installation - Solar Farm Applicant Applicant Solar Choice Pty Ltd Approval Sought Aspect of Development and Description Planning Scheme Development Permit Material Change of Use for Utility Installation (Solar Farm) Assessment Details Assessment Manager Toowoomba Regional Council Level of Assessment Impact Assessable. Public Notification 15 business days Prelodgement Consultation Agency Meeting Date and Contact Council 23 September, 2013 – Matthew Coleman Assessment Framework Relevant Planning Instruments State Planning Adopted Charges SPRP (July 2012) Regulatory Provisions (SPRP) Regional Plan Darling Downs Regional Plan
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Regional Plan Land Use The subject site is not identified as being in a specific precinct in the Darling Downs Regional Plan. State Planning Policies State Interest—Biodiversity (SPP) State Interest—Natural Hazards (Bushfire And Flood) Planning Scheme Toowoomba Regional Planning Scheme 2012 Strategic Plan Land Use Rural Zoning Rural - 200ha. Please refer to Figure 3. Local Plan The subject site is not located in a Local Plan area. Overlays Biodiversity Areas: Ecological Significance Ecological Significance Buffer Waterways and Wetland Buffer Bushfire Hazard: Medium Risk Good Quality Agricultural Land. Referrals Sch 7 Ref. Aspect Involving Role SARA Technical Agency (unless otherwise noted) Table 3, Item 1 MCU State-controlled road Concurrence DTMR Table 3, Item 7 & MCU Electricity Infrastructure Advice Powerlink 8 Table 3, Item 10 MCU Clearing vegetation Concurrence DNRM Table 3, Item 27 MCU Particular development on Concurrence DNRM & 29 SCL or potential SCL Other Information Contacts Primary Contact RPS Australia East Pty Ltd James Juhasz P:07 4632 2511 E: [email protected] Kathleen Hunter P: 07 3124 9369 E: [email protected]
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Locality Plan Figure 1
SUBJECT SITE
Ref Number: 119938-01 Date: December 2013 Source: Google Earth
The contents of this plan are conceptual only, for discussion purposes. All areas and dimensions are approximate only subject to relevant studies, Survey, Engineering and Council approval. Scale: Not to Scale Cadastral Plan Figure 2 FH SP 399.47ha 228641 FH RP85269 S 349.2ha FH SP 1 115.8ha ROAD 109197 AP13206 1 ROAD AP13206 A 473.896ha 15437 RP 21 97378 DY213 BOONDANDILLA EMT1 FTY1763DY954 ROAD ROAD RP 85269 22 4 FH DY213 SFLL DY1024 1 296.68ha RP192576 FH 24
ROAD 79500ha482.1ha DY1041 FH 391.192ha
FH FH
439.812ha D
ROA
A
IB
439.794ha RR T KA SP 109198 SUBJECT SITE 1977.766ha
AY HIGHW GORE U 18938 5 OR SP FTY1608DY1023 DY1025 109199 ROAD
SFLL
FH 389.917ha7640ha 18936 FTY1608DY1103 39 SFLL DY916 V SP 109200 2415.59ha7640ha 37
25 DY1103 Z MH776 SP 1439.39ha ROAD FH 2 2 109311 APAP FH 19.7ha FH 1320613206 SUBJECT 523.8ha 13 Y 36 SP SITE H776 109312 DY1103 1441.7938ha
LL
2415.59ha
X SP 109311 14 MH486
FH 329 PH1750 Ref Number: 119938-02 Date: December 2013 0 Source: NRM - Smartmap 2000 The contents of this plan are conceptual only, for discussion purposes. All areas and dimensions are approximate only subject to relevant studies, Survey, Engineering and Council approval. Scale: 1:50000 @ A4 Zoning Plan Figure 3 FH SP 399.47ha 228641 FH RP85269 S 349.2ha FH SP 1 115.8ha ROAD 109197 AP13206 1 ROAD AP13206 A 473.896ha 15437 RP 21 97378 DY213 BOONDANDILLA EMT1 FTY1763DY954 ROAD ROAD RP 85269 22 4 FH DY213 SFLL DY1024 1 296.68ha RP192576 FH 24
ROAD 79500ha482.1ha DY1041 FH 391.192ha
FH FH
439.812ha D
ROA
A
IB
439.794ha RR T KA SP 109198 SUBJECT SITE 1977.766ha
AY HIGHW GORE U 18938 5 OR SP FTY1608DY1023 DY1025 109199 ROAD
SFLL
FH 389.917ha7640ha 18936 FTY1608DY1103 39 SFLL DY916 V SP 109200 2415.59ha7640ha 37
25 DY1103 Z MH776 SP 1439.39ha ROAD FH 2 2 109311 APAP FH 19.7ha FH 1320613206 SUBJECT 523.8ha 13 Y 36 SP SITE H776 109312 DY1103 1441.7938ha
LL
2415.59ha
X SP 109311 14 Legend MH486 Rural FH Open Space 329 PH1750 Ref Number: 119938-03 Date: December 2013 0 Source: Toowoomba Regional 2000 The contents of this plan are conceptual only, for discussion purposes. All areas and dimensions are approximate only subject to relevant studies, Survey, Engineering and Council approval. Scale: 1:50000 @ A4 Aerial Photography Figure 4
SUBJECT SITE
SUBJECT SITE
Ref Number: 119938-04 Date: December 2013 Source: Google Earth
The contents of this plan are conceptual only, for discussion purposes. All areas and dimensions are approximate only subject to relevant studies, Survey, Engineering and Council approval. Scale: Not to Scale
2. Site Description
2.1 Site Analysis
Key details of the subject site are as follows in Table 2. Figure 4 provides an aerial view of the site, whilst a series of photographs of the site and its context are presented in Section 3: Development Description of this report.
Table 2 Site Analysis
Site Analysis Description Existing Development Allotments The subject site three adjoining cattle grazing properties totalling 5,382.75 hectares as follows: Minnaminane Lot 4 on DY 1024 1977.766 hectares Karriba Lot 5 on DY 1025 1439.39 hectares Lot 37 on DY 1103 523.8 hectares Balinga Lot 39 on DY 916 1441.794 hectares TOTAL: 5382.75 hectares
Use Cattle grazing properties Vehicle Entry Points Minnaminane Lot 4 on DY 1024 South eastern Gore Highway boundary. North western Gore Highway boundary & Karriba Lot 5 on DY 1025 North-eastern Karriba Road boundary. Lot 37 on DY 1103 North western Gore Highway boundary. Balinga Lot 39 on DY 916 Northern Karriba Road boundary.
Topography The subject site is generally flat with small hills and gullies generally following the paths of creeks traversing the site. Refer to Figure 1: Locality Plan. Waterways Tributaries of Bulli Creek traverse the subject site. Development will be setback from these tributaries. Vegetation Category B Area (Remnant vegetation) Category A or B containing endangered regional ecosystems. Category A or B containing area that is a least concern regional ecosystem. Refer to Appendix B. Wetlands The site does not feature wetlands. Contaminated Land The site is not registered on the Environmental Management Register or Contaminated Land Register. Refer to Appendix B. Notifiable Activities The site has not been used for a Notifiable Activity. Heritage Places The subject site does not contain a heritage place. Infrastructure and Services Road Frontages Minnaminane Lot 4 on DY 1024 Gore Highway: 4.10km Bulli Creek Road: 1.08km (south western alignment) 3.83km (north western
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alignment) Unnamed Road: 660m Karriba Lot 5 on DY 1025 Gore Highway: 5.27km Karriba Road: 160m Lot 37 on DY 1103 Gore Highway: 1km Balinga Lot 39 on DY 916 Karriba Road: 20m
Water Supply No reticulated services are available. Sewerage No reticulated services are available. Stormwater No reticulated services are available. Electricity, Gas and Telecommunication and electricity services are available within parts of the Gore Telecommunications Highway Road Frontage.
2.2 Surrounding Land Uses
The subject site is located in Bulli Creek approximately 140km south west of Toowoomba and 35 kilometres west of Millmerran. Surrounding land uses primarily consist of large scale agricultural uses including cattle grazing, however, the southern boundary of the site adjoins Western Creek State Forest. A Powerlink easement for the major 330kV Bulli Creek substation traverses the site.
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3. Development Description
3.1 General Description
The Applicant seeks Council’s approval for the establishment of a large scale solar farm over three existing cattle grazing properties in Bulli Creek. At ultimate capacity, the solar farm will generate up to 2.5 Giga Watts of electricity that will be sold directly and/or stored for later sale into the national electricity market. The maximum accepted generation at the 330kV Bulli Creek substation will be determined by studies conducted with Powerlink and AEMO.
The subject site is optimal for a large-scale solar farm given its proximity (with easement access) to the major 330kV Bulli Creek substation on the arterial power interconnector between New South Wales and Queensland. Additionally, the subject site has been predominately cleared of vegetation on account of the historic use of the subject site for grazing purposes, has a gentle gradient, is readily accessible via the Gore Highway and has significant existing internal infrastructure on-site that can be utilised as part of the proposed development (e.g. internal roads, dams, vegetative screening, etc).
The site has optimal sunshine hours and excellent road access with multiple frontages and access points to Gore Highway. There are pre-existing wildlife corridors across the subject site that, given the nature of the use, can be retained in their entirety. Additionally, given the regional topography, no neighbouring homesteads will overlook the proposal. The nearest neighbour is approx. 2.6km distant, measured from the north-east property boundary.
There are only a limited number of 330kV substations in Australia west of the Great Dividing Range with such excellent locational attributes. Please refer to Figure 4: Aerial Photograph.
As previously discussed with Council, due to the technological and financial constraints associated with this development application, detailed technical specifications and plans cannot be provided at this stage. Once formal development approval has been received, the project can be progressed toward final investment decision and thus technical specifications be finalised. In light of this, the applicant seeks approval for the maximum built form envelope across the site to allow for the assessment of the highest possible impact on the site and surrounding environment.
Given the above, the applicant seeks that Council assess the application against the intents of the Planning Scheme and condition the provision of detailed construction plans and management processes post approval but prior to the commencement of any works on-site.
3.2 Site Layout
As per Figure 5 and Appendix D: Proposal Plans, the developable area comprises all areas previously cleared of vegetation, excluding the electricity easement areas, buffer areas, internal access roads and dam infrastructure. Ultimately, as shown on the indicative development imagery below, the development area will accommodate solar panel arrays across the majority of the subject site, which will be supported by other ancillary buildings and structures.
Particularly, the redevelopment of the subject site for a solar farm will consist of the following main components:
An array of solar photovoltaic (PV) modules, arranged in a grid pattern with ten (10) metre spacing between each row and no higher than five (5) metres above the ground and supported by a steel and/or aluminium mounting structure including framing, pylons and foundations. A series of inverters and kiosk transformers distributed throughout the solar array.
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Electrical connections between PV arrays, associated monitoring and protection equipment and central inverters via underground or frame secured cabling. A tracker actuation system (if applicable). Network interconnection facilities to connect the project to either or both of the 330KV and 132KV distribution system via an overhead feeder line to Bulli Creek substation or a new terminal on site, including a main power transformer, switchgear, protection, metering and communications equipment. Utility scale battery storage in due course located throughout; Site office and operations and maintenance facilities. Site entry road, internal access tracks and car park. Site fencing and associated security equipment.
As stated above, it is requested that the provision of detailed construction and proposal plans be conditioned so that such drawings are provided to Council for approval following any development approval that may be granted but prior to commencement of any construction works.
Notwithstanding the above, to allow for a complete assessment of the proposed development concept, Site Plans and indicative proposal plans are provided at Appendix D.
With respect to construction, due to the modularity of solar array technology, minimal heavy machinery is required for the construction of the solar farm, and none during the operation. This enables the construction period to be conducted with minimal disturbance for neighbours.
The construction of the solar farm would require:
Temporary lay-down areas for equipment and shipping containers in the vicinity of the site office. Staggered delivery of up to a maximum of approximately 39,285 shipping containers of equipment throughout an approx. 24 to 36 month construction period. Pile driving equipment to install the piers that support the solar array. Mechanical installation of the mounting structure and PV modules. Trenching of underground cabling. Installation of electrical cabling, inverters and associated electrical equipment. Preparation and installation of the kiosk transformer and associated upgrade works to existing distribution lines if required. Commissioning and testing of the solar farm.
Similar to the provision of detailed design documentation, it is requested that a condition be imposed as part of any development approval that may be granted by Council that requires a detailed Construction Management Plan to be submitted to Council for approval prior to the commencement of any site works.
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Figure 5 Proposed Development Area
3.3 Development Parameters
As illustrated in the Proposal Plans, Appendix D, and as reproduced above in Figure 5, the maximum development envelopment of the proposal is approximate 75% of the overall site area. Within the development area it is proposed to establish solar arrays of a maximum height of 5.0m, indicatively eight (8) areas where battery storage buildings will be located and one (1) site office. In addition, it is proposed to establish two (2) new internal roads whilst retaining the four (4) current access/egress points to Gore Highway.
The following sections provide further detail on the setbacks, landscaping and maximum heights of the proposal.
3.3.1 Setback Areas
The proposed solar farm would be set back approx. 40m from Gore Hwy, within which a band of screen trees up to 40m wide is already well established in sections, or will otherwise be planted 15m wide. Please refer to the Proposal Plans, Appendix D and Table 3 Proposed Setbacks below for detailed setback information.
Table 3 Proposed Setbacks
Proposed Setback Infrastructure Gore Highway 40m setback to all Gore Highway frontages. Easement 10m setback to all Easement boundaries. Bushfire and Ecological 20m setback to all areas identified as being affected by the Bushfire overlay or being of ecological significance.
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Proposed Setback Residential Adjoining Properties 20m setback to all adjoining properties. Closest residential property is approximately
3.3.2 Maximum Height
The proposed solar farm would consist of three (3) built forms as follows:
Battery Storage Building Solar Array Site Office.
As demonstrated in Table 4 below, the maximum height for all of the above built structures will not exceed 7.0m with the majority of the proposal consisting of solar arrays of a maximum height of 5.0m.
Table 4 Maximum Building Heights
Structure Building Height Battery Storage Building 6.0 metres above ground level Solar Array 5.0 metres above ground level Site Office. 4.5 metres above ground level
3.3.2.1 Battery Storage Building
As illustrated in Figure 6 below, the proposed indicative Battery Storage Buildings are the approximate size and shape of a commercial warehouse. As illustrated below, each structure will indicatively be one (1) storey in height with an approximate length of 40m and approximate width of 18m. Depending on the outcome of studies with Powerlink and AEMO, more than one building may be located at any of the eight indicative locations.
Figure 6: Indicative sketch of Battery Storage Buildings
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3.3.2.2 Solar Array
Whilst the maximum height for the proposed solar arrays is 4.5m, an indicative sketch of the proposed solar panel and mounting frame is provided at Figure 7.
Figure 7: Indicative sketch of solar frame
3.3.2.3 Site Office
The office would consist of up to three standard construction site offices sufficient for a small team of permanent maintenance and/or security staff. The site offices would be no higher than 4.5m and no longer than 25m, and consist of colour-bond exterior mounted on concrete footings. If available, the optimal colour for the site office to blend in with the surrounds of the Bulli Creek woodland landscape is Colourbond Woodland Grey or, if not available, Colourbond Windspray may be selected.
3.3.3 Location of Screen Planting
As noted, there already exists long stretches of trees that would screen and buffer views from passing motorists along Gore Hwy to the subject site.
Where there are no existing screen trees, such as at the eastern end of the subject site to the north the applicant will commit in its Landscape Design Plan (to be conditioned by Council) to planting a buffer zone of trees 15m wide and in five rows, including a mix of fast and slow growing trees up to 10m high.
3.3.4 Fencing and Signage
There is an existing wire fence surrounding the subject site suitable for retaining cattle. This type of fencing will be either retained or upgraded, and maintained by the proposal. Signs will be placed along the fencing requesting members of the public not to enter the site.
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The solar farm will be named and branded as the “Bulli Creek Solar Farm”. It is proposed that there be one double-sided sign only, and it be located at the proposed entrance to the site office along the Gore Hwy, displaying project name and the Solar Choice logo plus contact details on a light coloured background. The proposed size of the sign would be no larger than 4m wide x 2.5m high and will be the subject of a future development application to the Toowoomba Regional Council and the Department of Transport and Main Roads, as required.
3.3.5 Vehicular Access and Car Park
As illustrated in the Proposal Plans, Appendix D, there are four existing road access/egress points to the Gore Hwy on the subject site. The site office, car park and set down area for the containers are proposed to be located along the central Gore Highway alignment, south of the road. The location is preferred given it is situated along a long and straight stretch of Gore Hwy, allowing ample time for indication for turning trucks and other vehicles. It is noted that under the Planning Scheme, there is no specified car parking rates for a Utility Installation.
Access requirements include standard light vehicles, various medium weight vehicles and articulated container trucks. There will be ample room to drive maintenance equipment between all corridors of modules.
Over an approx 24 to 36 month construction period, 39,285 container trucks will be required to make deliveries to the site. Over-size and over-mass vehicles are not expected to be required.
It is expected that a Traffic Management Plan (TMP) approved by Council will form a pre-construction condition to any planning approval. Until grid connection studies have been completed with AEMO and Powerlink and the maximum generation capacity at the site is known, it is too early to prepare a TMP at this stage. It is noted however that the eventual TMP will ensure vehicles:
Are minimised in size, length, and number. Travel with appropriate regard to other road users. Travel at times which minimise traffic noise impacts to surrounding residents, noting that nearest neighbouring homestead is over 2.5kms distant from the subject site.
During construction, the TMP would likely ensure that vehicles would generally operate within 1 hour of normal construction hours. The TMP would ensure that the measures are adequate to address potential safety and asset degradation impacts, including scheduling and timing of deliveries, community notification requirements, signage, traffic controls and dilapidation reporting.
3.3.6 Grid Infrastructure
Figure 8 below shows the existing overhead 330kV distribution line crossing over the Gore Hwy, and Figure 9 shows the 132kV Goondiwindi feeder line joining the 330kV easement at far north corner of the subject site.
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Figure 8: 330kV line crossing over Gore Hwy and heading north.
Figure 9: 330kV transmission line heading north to Bulli Creek substation, joined by 132kV line from Goondiwindi approx 3km south of substation
It is anticipated that a feeder line will be constructed taking power from the proposal a distance of approx 4.5kms from the northern corner of the proposal to the Bulli Creek substation (see Figure 10 below).
The exact grid connection requirements and infrastructure, and an eventual offer to connect, will be determined through a network technical study to be undertaken with AEMO and Powerlink (and possibly also Ergon). It is sought that Council condition the provision of this report should this application be approved.
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Figure 10: the Bulli Creek substation showing entrance of both the 330kV transmission line from the east, and the 132kV line from Goondiwindi to the right.
Figure 11: showing indicative distribution of inverter houses in a solar farm.
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Figure 12: Indicative image of Inverter House Dimensions.
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4. Key Planning Issues
4.1 State Planning Issues
4.1.1 Land Abutting a State Controlled Road
It is noted that the subject site adjoins the Gore Highway, a state controlled road. As such, referral to the State Assessment and Referral Agency is required.
In support of this application, it is noted that, whilst the site is within 25m of the Gore Highway, it does not:
Result in an increase in the number of allotments directly adjoining a state controlled road. Result in a significant increase in the number of vehicles accessing the site via Gore Highway (once operational). Result in an adverse change in storm water flows affecting the Gore Highway. Result or create driver distraction given a vegetated landscape buffer is to be provided along the common frontage with the Gore Highway.
As stated above, the final solar technology and thereby the array will not be confirmed until the project has reached final investment decision. To this end, it is requested that a development condition be imposed that requires a detailed Traffic Management Plan to be submitted to Council and the Department of State Development, Infrastructure and Planning (DSDIP) prior to the commencement of any site works.
4.1.2 Particular development on SCL or potential SCL
The development application will be required to be referred to DSDIP for assessment as the land is partially mapped as Potential SCL. The Applicant is consulting the Department of Natural Resources and Mines (DNRM) as the technical agency for SCL matters.
4.2 Local Planning Issues
4.2.1 Confirmation of final design specifications
The Applicant cannot confirm the final solar technology or construction method until the final investment decision is made on the project. To this end, the applicant requests that Council assesses the development application based upon the greatest development envelope, which is defined in the previous sections of this report.
Assessment of the greatest development envelope will ensure that a thorough assessment against the relevant planning instruments is completed whilst also providing the Applicant with the ability to provide Council and other relevant Stakeholders with detailed construction drawings and management processes prior to the commencement of any construction works on-site.
4.2.2 Impact of proposal on the rural amenity and character
Whilst it is noted that the proposal results in the temporary loss of agricultural land, the proposed use remains in line with the overall intents of the surrounding rural and agricultural locality.
In particular, as demonstrated in Section 6.2.2 of this report, the proposal:
Does not result in the fragmentation of agricultural land. Has been designed to incorporate a significant landscape buffer to screen the use from the adjoining Gore Highway.
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Protects and retains the existing natural features on site. Allows for the re-use of the site for agricultural purposes in the future given the temporary nature of the use.
In addition to the above, as demonstrated in Section 5.2.1, the proposal is consistent with the intents of the Strategic Plan. In particular the proposal supports the growth of the energy section of the region through an environmentally sensitive and renewable proposal. The approval of this development would demonstrate Council’s willingness to support both renewable energy sources in addition to those more unsustainable proposals such as coal, coal seam gas and coal seam gas water.
In addition it is noted that the proposal would result in significantly immediate and ongoing environmental impacts to other energy projects in the region.
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5. Planning Assessment
This section provides an overview of the legislative context of the application under the provisions of the SPA.
Key assessment details, such as the aspects of development, the level of assessment and referral triggers are outlined in Table 1 Development Summary .
5.1 State Planning Requirements
A review of the current SPRPs, SPP and the applicable Regional Plan has been undertaken. The proposed development is considered compliant with all of the requirements and no conflicts have been ascertained.
5.1.1 State Planning Regulatory Provisions
The SPRP that are applicable to the site and/or proposal are listed in Table 1 Development Summary. The Adopted Charges SPRP is addressed below in the context of infrastructure charging. No further SPRP’s are identified as being applicable.
5.1.1.1 Adopted Charges SPRP
The Adopted Charges SPRP applies to all development in Queensland. As such, the proposed development should be subject to infrastructure charges calculated under the Adopted Infrastructure Charges Resolution – No 2. Given the scale and complexity of this proposal, we seek further advice from Council as to the appropriate Infrastructure Charges.
5.1.2 Regional Plan
The site is within the area of the Darling Downs Regional Plan. Whilst the subject site is not identified as being within either the Priority Agricultural Area or Priority Living Area of the Regional Plan, the proposal has been assessed against the regional outcomes and policies of the Regional Plan as detailed in the following table:
Regional Outcomes and Policies Response Outcome The proposed solar farm will contribute to the growth Agriculture and resources industries within of a renewable resources industry in the Darling the Darling Downs region continue to grow Downs region without the degradation of agricultural with certainty and investor confidence. resources on site. The development will provide for new investment opportunities for the region. Policy The subject site is not located within a Priority Protect Priority Agricultural Land Uses Agricultural Area. within Priority Agricultural Areas. Policy Maximise opportunities for co- The subject site is not located within a Priority existence of resource and agricultural Agricultural Area. land uses within Priority Agricultural Areas. Outcome The growth potential of towns within the The proposed solar farm does not seek approval for Darling Downs region is enabled through the development of land within a Priority Living Area. the establishment of Priority Living Areas.
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Compatible resource activities within these areas which are in the communities’ interest can be supported by local governments. Policy Safeguard the areas required for the The subject site is not located within a Priority Living growth of towns through establishment Area. of Priority Living Areas (schedule 1). Policy Provide for resource activities to locate within a Priority Living Area where it The subject site is not located within a Priority Living meets the communities’ expectations Area. as determined by the relevant local government.
5.1.3 State Planning Policies
Table 1 Development Summary identifies the State Interests of the State Planning Policy (SPP) that are applicable to the site and proposal in accordance with Part E: Interim Development Assessment Requirements of the SPP. A response to these State Interests follows below.
5.1.3.1 State Interest—Biodiversity
The table below identifies the relevant requirements of the Biodiversity State Interest applicable to the development.
Requirements Response a. identifies any potential significant As discussed in Section 4 above, the proposed adverse environmental impacts on development has been designed to minimise any matters of state environmental potential significant environmental impacts on matters significance, and of state environmental significance. b. manages the significant adverse environmental impacts on matters of state environment significance by, in order of priority: The proposed development manages the (a) avoiding significant adverse environmental impacts by ensuring that all environmental impacts, and development occurs outside those areas where (b) mitigating significant adverse significant flora or fauna communities exist. environmental impacts where Please refer to Appendix C. these cannot be avoided, and (c) where applicable, offsetting any residual adverse impacts.
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5.1.3.2 State Interest—Natural Hazards (Bushfire and Flood)
The table below identifies the relevant requirements of the Natural Hazards (Bushfire and Flood) State Interest applicable to the development.
Requirements Response For all natural hazards: 1. avoids natural hazard areas or In accordance with the intent of the State Interest, the mitigates the risks of the natural proposed development will not result in the increase hazard, and in the risks associated with natural hazards are to people and community infrastructure. As detailed in Section 3 of this report, the proposed development seeks approval for a solar farm with a low number of full time, on-site employees. No permanent residents or employees are proposed to be located on site full-time, thereby minimising the impact of the development on human life. 2. supports, and does not unduly burden, Given the low risk to human life, the proposed disaster management response or development will not burden, disaster management recovery capacity and capabilities, and response or recovery capacity and capabilities. 3. directly, indirectly and cumulatively The proposed development will not result in an avoids an increase in the severity of the increase of the severity of any natural hazards as it natural hazard and the potential for does not result in damage on the site or to other a. the increase in ground fuel loads; properties, and b. reduce the overall percentage of permeable land on site; or c. Result in additional full time, permanent residents or employees on site. 4. avoids risks to public safety and the environment from the location of The proposed development does not result in the hazardous materials and the release of onsite storage of hazardous materials. these materials as a result of a natural hazard, and 5. maintains or enhances natural Where appropriate and practical, the proposal will processes and the protective function maintain and protect existing vegetation and of landforms and vegetation that can waterways that are significant to the function of the mitigate risks associated with the catchment and mitigate the impacts of natural natural hazard hazards. Please refer to Section 4 for further details.
5.1.4 Referrals and State Development Assessment Provisions
Referral matters for this proposal have been assessed against Schedule 7 of the SPR. Table 1 Development Summary identifies the applicable referral matters.
No referral agency responses have been obtained prior to the lodgement of this development application. This will be obtained as part of the information and referral stage.
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The State Development Assessment Provisions (SDAP) nominates applicable modules and State Codes based on the referral agency assessment triggers. The modules and code triggers for assessment under these referral jurisdictions are contained in the below table.
IDAS Form 5 specifies the mandatory supporting information to a development application and includes a requirement for a ‘statement addressing the relevant part(s) of the State Development Assessment Provisions’ .
A response to the relevant parts of the State Development Assessment Provisions Codes is provided at Appendix F.
5.2 Local Planning Requirements
The Toowoomba Regional Planning Scheme is applicable to this application. The relevant provisions are identified and addressed below.
5.2.1 Land Use Definition
In accordance with Council’s Prelodgement Meeting Minutes (Appendix E), whilst the proposal is defined as a ‘Utility Installation’ as below:
Premises used to provide the public with the following services: a) supply of water, hydraulic power, electricity or gas; b) sewerage or drainage services; c) transport services, including road, rail or water; d) waste management facilities; and e) network infrastructure. The use includes maintenance and storage depots and other facilities for the operation of the use.
5.2.2 Level of assessment
On Council’s advice, the proposal is subject to Impact Assessment and all associated procedures including public notification.
5.2.3 Public Notification
This application requires public notification pursuant to Section 295(1) of the Sustainable Planning Act 2009.
5.2.4 Strategic Plan
The following tables provide an assessment of the proposal against the relevant elements of the Strategic Plan applicable to the proposal including the Rural Landscape Element, the Protect Ecosystems with Biodiversity Values Element and Natural Resources and Landscape Element. As demonstrated in Table 5 the proposal is consistent with the intents of the Strategic Plan. In particular the proposal does not:
Adversely impact on the integrity, viability and productivity of good quality agricultural land; compromise the long term viability of good quality agricultural land; or Adversely impact on the physical condition, ecological health and environmental values of areas of ecological significance.
The table below identifies the relevant outcomes of the Strategic Plan applicable to the development.
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Table 5: Assessment of Proposal against Strategic Plan
Relevant Outcomes Response 3.2.9 Element - rural landscape The integrity, viability and productivity of As addressed in Section 4, the proposed development is a good quality agricultural land and the rural temporary use only and will not impact on the integrity, viability landscape are protected and maintained for and productivity of the site. agricultural purposes. The impact of the proposal on the agricultural values of the land is considered to be minimal given the subject site has located on land traversed by electrical infrastructure. Nevertheless, it is noted that, following any required remediation, the development will not preclude the future reuse of the subject site for agricultural purposes. Good quality agricultural land: (a) that is outside of areas As above, the proposed development is a temporary use only designated for urban development is and will not impact on the integrity, viability and productivity of conserved for current and future agricultural the site. purposes (refer Strategic Framework Map The nature of the proposed use requires it to locate outside an SF4 – Natural Resources and Landscape); urban area. The subject site has been selected to minimize and impacts to rural land (e.g. no new transmission lines required) and will service the rural industry by providing an alternative source of electricity supply.
(b) is not degraded, alienated or The proposed solar farm will not result in the long term fragmented, providing for its long-term and degradation, alienation or fragmentation of agricultural land. sustainable agricultural use. Potential for conflict between farming The proposed solar farm will not result in conflict between activities and residential development is agricultural and residential uses. The closest residential avoided. dwelling is located approximately 2.6km away. The subject site is predominately surrounded by State forest reserve. Agricultural practices do not compromise The proposed development is a temporary use only and will the long term viability of good quality not impact on the integrity, viability and productivity of the site. agricultural land. 3.3.2 Element - protect ecosystems with biodiversity values The existing areas of ecological As detailed in the attached Ecological Assessment, no significance across the Toowoomba established vegetation communities will be cleared during the Regional Council area (approximately 31% construction and operation of the solar farm. However, areas of the Region), including endangered; of that have been subject to recent regrowth or are sparsely concern and least concern regional located areas that are predominantly cleared or will be cleared ecosystems and areas of endangered, where no ecological significant vegetation exists. vulnerable and rare species are retained and where possible enhanced and connected by environmental corridors. The physical condition, ecological health As above, the proposed development is a temporary use only and environmental values of areas of and will not impact on the integrity, viability and productivity of ecological significance are protected, the site. As detailed in the Ecological Assessment, “there is managed and where possible enhanced. unlikely to be any significant environmental issues that will
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Relevant Outcomes Response constrain the proposed solar farm development or that would be detrimental to the observed ecological values.” 3.5.1 Natural resources and landscape The protection and conservation of water The proposed development will not result in any adverse resources is critical to the sustainability of impacts on water resources critical to the sustainability of the all activities in the Region. region. All development has been setback from the waterways traversing the site. Land and energy resources are sustainably The establishment of a renewable energy source over the site managed to allow communities to meet will assist in the continued development and use of the present and future needs while not surrounding region by providing clean energy that meets compromising the ability of future present and future needs of local communities whilst not generations to meet their needs. compromising the ability of future generations to meet their needs Development in and adjacent to natural The proposal will not result in the generation of any adverse resource areas is managed to prevent and emissions or impacts on the state forest areas surrounding the otherwise minimise impacts on the development. continued and future use of the resource. Use of the land and its natural resources is The proposed development is a temporary use only and will undertaken in a way that does not cause an not impact on the integrity, viability, agricultural quality or adverse impact on the environment. ecological importance of the site. Please refer to Section 3 for additional details.
3.7.5 Element - utility infrastructure and services The Region: The proposal will allow for the provision of the latest solar a) has access to up-to-date power technology to the region. The proposal will ensure that information and communications energy demands for the future are met in the most sustainable technology; way possible with no greenhouse gas emissions arising as a result of the proposal. b) is serviced by energy infrastructure that keeps pace with future growth; and c) supports the use of viable low emissions energy sources where appropriate. 3.8.1 Economic Development The Toowoomba Region has a strong, The proposed development will assist in establishing an prosperous and progressive economy that alternative employment opportunity for the region, providing contributes to the health and wellbeing of employment for those not associated with the agricultural both rural and urban communities and industry. contributes to the character and liveability of the Region. The Region promotes a diverse range of The proposed development is an environmentally sustainable business, industry and tourism activity that proposal which will help provide a sustainable, renewable is innovative, environmentally sustainable source of energy to the region whilst providing employment and generates a diverse range of opportunities outside those already available in the vicinity. employment opportunities.
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Relevant Outcomes Response The Toowoomba Region supports two prime sectors of regional growth: energy, through the Surat Energy The proposal supports the growth of the energy section of the province includes coal, coal seam gas, region through an environmentally sensitive and renewable coal seam gas water, ethanol and proposal. The approval of this development would demonstrate power station development has the Council’s willingness to support both renewable energy potential to more than triple the Gross sources in addition to those more unsustainable proposals Regional Product and create more than such as coal, coal seam gas and coal seam gas water. 16,000 new jobs in the Region over the In addition it is noted that the proposal would result in next 22 years; significantly immediate and ongoing environmental impacts to other energy projects in the region. Energy and allied industries provide a The proposal provides a significant opportunity to maximise significant opportunity to maximise sustainable economic outcomes. The development would economic outcomes for the Region. The on- provide a continuous energy supply to the region without the going development of the Region’s energy depletion of non-renewable resources. resources will provide significant flow-on As mentioned above, the proposal would result in construction, effects to supply chain businesses from maintenance and security employment opportunities within the mining services and other sectors including region, allowing a more diverse employment base. construction, infrastructure, transportation and accommodation.
5.2.5 Zone
Under the Planning Scheme, the site is in the Rural - 200ha Precinct as illustrated in Figure 3: Zoning Plan. The table below identifies the relevant purpose of the Rural - 200ha Precinct applicable to the development.
Purpose Response The purpose of the zone will be achieved through the following overall outcomes: (a) areas used or suitable for primary The proposed solar farm will not result in the degradation, production are conserved and are alienation or fragmentation of agricultural land. not further fragmented; It is noted that whilst the development requires limited ground disturbance therefore limited impact to land, land ownership is being retained in the current configuration and therefore will not result in the fragmentation of the land. In addition, the proposal utilizes existing infrastructure thereby minimizing the impact of the proposal on the land. In addition, the impact of the proposal on the agricultural values of the land is considered to be minimal given the subject site has located on land traversed by electrical infrastructure. Nevertheless, it is noted that, following any required remediation, the development will not preclude the future reuse of the subject site for agricultural purposes. (e) development contributes to the As detailed in Section Error! Reference source not found. amenity and landscape character of above the proposal has been designed to incorporate a 15m the area; landscape buffer along the applicable road frontages of the site. This buffer is intended to provide both screening and security to
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the proposal, in addition to improving the visual amenity of the site from Gore Highway. (h) natural features such as creeks, The proposed development has been designed to retain the gullies, waterways, wetlands and existing pockets of established vegetation. In addition, adequate bushland are retained, managed, buffers have been provided from the solar farm to the existing enhanced and provided with waterways and vegetation communities to ensure the proposal appropriate buffers from does not result in any adverse impacts. development; (i) adverse impacts of land use, both As detailed in the attached Ecological Report, the proposal will on-site and on adjoining areas, are not result in the generation of any adverse emissions or impacts avoided and any unavoidable either on site or on the land surrounding the development. impacts are minimised through location, design, operation and management; (k) the viability of both existing and The proposed development is a temporary use only and will not future rural uses and activities are impact on the integrity, viability and productivity of the site. protected from the intrusion of In addition, the proposal will not result in any adverse impacts incompatible uses; and on the ongoing operation of surrounding agricultural uses. (l) development has access to As previously discussed, the subject site is optimal development infrastructure including for a large-scale solar farm due to its proximity with utility installations and essential easement access to the major 330kV Bulli Creek services. substation on the arterial power interconnector between NSW and Queensland. 200 Hectare Precinct The overall outcome of the 200 Hectare As above, the proposed development is a temporary use only Precinct within the Rural zone is that the and will not impact on the integrity, viability and productivity of productive, natural and landscape values the site. of rural land which is relatively In addition, the development will not result in the fragmentation unfragmented are preserved by the of the site. prevention of fragmentation. As above, it is noted that land ownership is being retained in the current configuration and therefore will not result in the fragmentation of the land. The proposed development has been designed to retain the existing pockets of established vegetation and natural features including waterways and ridges. The proposal will not adversely impact on the operation of any surrounding agricultural uses.
As demonstrated above, the proposal is consistent with intent of the Rural - 200ha Precinct.
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5.2.6 Applicable Codes
The Toowoomba Regional Planning Scheme identifies that the following Codes are applicable to the development.
Table 6 Applicable Codes
Applicable Code Trigger Issues Location of Response Rural Zone MCU None identified. Appendix G
Integrated Water Cycle Management MCU None identified. Appendix G Landscape MCU None identified. Appendix G Transport Access and Parking MCU None identified. Below
Works and Services MCU None identified. Appendix G Biodiversity Areas Overlay Overlay None identified. Appendix G Bushfire Hazard Overlay Overlay None identified. Appendix G Environmental Standards Overlay Overlay None identified. Appendix G Good Quality Agricultural Land Overlay Overlay None identified. Appendix G
Transport Access and Parking
As identified in Section 3.3.5 of this report, as this application seeks approval for a Utility Installation, no car parking requirements are identified. Given the relatively low vehicle turnover generated by the use, and the low number of employees, assessment against the Transport, Access and Parking Code is considered excessive. Car parking and access, where applicable, will be provided in accordance with SC 4.2, Planning Scheme Policy 2 – Engineering Standards.
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6. Conclusion
Solar Choice Pty Ltd (the Applicant) seeks development approvals to facilitate the establishment of a large- scale solar farm at Bulli Creek , 270km due west of Brisbane, Queensland (35km west of Millmerran).
The site is located at Gore Highway, Bulli Creek, and is formally described as Lot 5 DY1025, Lot 37 on DY1103, Lot 4 on DY1024 and Lot 39 on DY916.
The application seeks approval for:
Development Permit for Material Change of Use for Utility Installation (Solar Farm)
The Town Planning Report and the supporting technical appendices have demonstrated compliance with the State and Local planning instruments and matters that are relevant to the development application, particularly, it has been demonstrated that:
The development application is not inconsistent with any State Planning Regulatory Provision (SPRP), Statutory Regional Plan or State Planning Policy; The development proposal has demonstrated compliance with the provisions with the Toowoomba Regional Planning Scheme 2012. In particular, as demonstrated in Section 5.2.4 of this report, the proposal can be demonstrated to comply with the strategic intents of the Planning Scheme. The development supports the long term sustainable provision of electricity to the surrounding community. The proposal does not result in the fragmentation or loss of agricultural land. The proposal has been designed to ensure that it does not result in any adverse impacts on visual amenity through the screening of the use from Gore Highway with 15m wide landscape buffers.
In view of the above, approval is recommended subject to reasonable and relevant conditions.
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