Cooma-Monaro Settlements Strategy 2016-2036
A vision to guide development in the major settlement areas of the Shire
Discussion Paper December 2015
Cooma-Monaro Settlements Strategy 2016-2036 – Discussion Paper
Contents 1 Purpose of this Discussion Paper 3 2 What’s happening in the Shire? 4 3 Strategic Planning - policy context 9 4 Influential factors in the state and regional context 10 4.1 Canberra Airport vision and development 12 4.2 Development of the Eastern Broadacre Area within the ACT 13 4.3 Rail line between Queanbeyan and Cooma 17 4.4 Positioning of Cooma-Monaro between growing areas 24 4.5 Tourism in the Snowy Mountains 26 4.6 Port of Eden development 28 4.7 Forecast increase in the national and state freight task 29 4.8 A warming climate 36 4.9 Expansion of the sawmill in Bombala 38 4.10 Development of the NBN in the south east 39 4.11 Maintenance of the region’s unique natural landscape and open space 40 4.12 Development of Bega Hospital as a major south east regional medical centre 41 4.13 Increasing use and development of online and virtual educational resources 41 4.14 Conversion to solar battery and electric car technology 42 4.15 Re-commencement of passenger air services from Snowy Mountains Airport 43 5 Settlements hierarchy – maintain status quo? 45 6 Cooma – vision and issues 52 7 Bredbo – vision and issues 61 8 Michelago – vision and issues 64 9 Smiths Road – vision and issues 66 10 Numeralla – vision and issues 68 11 Nimmitabel – vision and issues 70 12 Future directions 73
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1 Purpose of this Discussion Paper
The commencement of Cooma-Monaro Local Environmental Plan 2013 (CMLEP 2013) in October 2013 marked the beginning of a new stage in town planning in the Shire. For the first time in its history, the Shire now had a single Local Environmental Plan (LEP) to guide development into the future. In addition, this new LEP was up to date and consistent with the broader planning reforms being undertaken by the State Government.
These planning reforms resulted in changes to the legislation governing the making of LEPs and required conformance to new State-wide standards in the content and format of LEPs. There was a substantial amount of information and issues for local Council’s to grapple with as part of this ‘transition’ process. As a result CMLEP 2013 in large part evolved as a planning instrument which attempted to ‘translate’ the provisions of the former LEPs into the new conforming format and context by making as few changes as possible to its fundamental provisions. This included zone boundaries, minimum lot sizes, permitted land uses in various zones, etc. Inevitably some changes did occur, but these were generally limited in scope and restricted to State Government requirements and/or fixing obvious problems in the previous LEPs. A Local Environment Study (LES) and Strategic Direction document were also prepared as part of the new LEP process.
With updates and changes to legislation surrounding LEPs now reasonably settled, and with CMLEP 2013 having been in force for two years now, the time has come for Council and the community to think more broadly about its future directions in terms of planning and development. It is also an opportunity to move Council forward within the region and align its development directions with State Government regional thinking. The planning horizon of the State Government at present is 20 years, extending to the year 2036.
This discussion paper focusses on the direction Cooma-Monaro Shire Council should take with its planning and development over this timeframe. It is not seeking to publicise decisions that have already been made, but is rather a genuine attempt to ascertain community attitudes to a range of planning and development issues. In this regard it has been written to stimulate discussion about key issues, and is not attempting to provide recommendations or ‘answers’. The feedback received will help inform the Cooma-Monaro Settlements Strategy 2016-2036, and this document will in turn guide the direction of future changes to CMLEP 2013.
The much publicised Council amalgamations should not deter this process, as it fundamentally concerns the planning and development of a geographic area and the settlements within it. These will continue to exist regardless of the political and administrative body responsible for their oversight. Whatever the future governing institution may be, this discussion paper and the feedback it receives from the community will inform any future decision making process.
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2 What’s happening in the Shire?
Cooma has changed a lot in the past 20 years. In 1995 there was no Aldi, no Centennial Plaza, no Snowy Mountains Christian School and no McDonalds. The levy banks along Cooma Creek were different and there was no Cooma Creek walkway. There was no Defence Call Centre and no dedicated Rural Fire Service Facility at Polo Flat. Cooma Swimming Pool looked very different, Grace Brothers was in the Hain Centre and Rhythm Snow Sports was little more than a petrol station. There was no Boco Rock windfarm or Pigring Creek Dam, and Michelago village and Smiths Road were not even part of the Shire. Other popular and successful businesses and industry of today were also non-existent or only in their formative stages. In broader society there were no iphones or tablets, mobile phones were large and bulky, TVs were large boxes and construction for the Sydney Olympics was barely underway.
A lot can change in 20 years and this is the horizon in view in this discussion paper. The Shire in 2036 will be a different place to what it is today. But many things will also stay the same. Deciding what needs to change or what could change, in contrast to what needs to be maintained and preserved, is one of the most basic decisions to be made in any planning strategy aimed at the long term future.
Cooma-Monaro Shire had an estimated residential population of 10 216 in 2014 (Australian Bureau of Statistics). The following graph shows the estimated residential population since 2003.
Figure 1: The estimated Residential Population of the Shire over time.
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The above graph shows a total increase of 4.4% or 432 persons over 11 years from 2003- 2014. It also shows that growth has been small but steady year to year over this period. At first glance this information appears reassuring in that the Shire has a stable and steady population base. However, there are trends within the population data itself which warrant awareness.
It is well known that Australia’s population is aging, and Cooma-Monaro Shire is part of this trend. The following graph shows that over the period 2001-2011 almost all the positive change in population occurred in the 45 plus age groups. In addition, the median age of the Shire in 2011 was 43, which is 6 years above the median age of Australia as a whole.
The Department of Planning and Environment publishes population projections for individual NSW local government areas (www.planning.nsw.gov.au/research-and-demography ). Their modelling suggests only a very modest average annual growth rate of between 0.1%-0.4% in each 5 year period from 2011-2031 is likely for the Shire. In addition the key factors affecting population change over this period have been identified as a high fertility rate and an aging population. However in broader societal trends the rate of natural increase is not expected to rise significantly, making the importance of attracting in-migration important in terms of maintaining population.
Figure 2: The change in the age structure of the Shire over 10 years from 2001 to 2011.
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NSW State Population Projections for the Shire 10,800
10,700
10,600
10,500
10,400
10,300 Total Population 10,200
10,100
10,000
9,900
9,800 2011 2016 2021 2026 2031
Figure 3: NSW State Population projections for the Shire showing very modest growth.
Cooma has had a relatively stable population over the past several decades since the completion of the Snowy Mountains Scheme. This has been one of the underlying strengths of the town and is a reflection of its relatively diverse economy. Retail trade is the largest sector of employment for local residents, at 12.4% of the workforce, but public administration and safety, and health care and social assistance are not far behind. There is also well over 300 people (6.5% of employed residents) working in each of the following industry sectors: Construction, Agriculture Forestry and Fishing, Accommodation and Food Services and Education and Training. The Gross Regional Product of the Shire’s economy has also been growing, reaching $547 million at the end of the 2013/14 financial year.
Figure 4: Gross Regional Product for selected years in Cooma-Monaro Shire.
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Despite its generally good economic performance the Shire is aging, and like the rest of regional NSW is likely to do so at a faster rate than NSW or Australia as a whole over the coming 20 years. NSW is projected to grow by 2 million people over this period, but the vast majority of the growth is likely to occur in the Sydney, Newcastle and Wollongong regions. However, despite the overwhelming share of population growth in these cities, the Shire’s population is not entirely dependent on natural change (ie the balance between births and deaths. In the 2011 Census almost 20% of the Shire’s residents (just under 2000 people) indicated they had moved to the Shire from elsewhere in NSW or Australia, or overseas, in the last 5 years since the previous Census. This positive figure indicates that a significant number of people do move into the Shire. Nevertheless the relatively stable overall population suggests that others are moving away. The reasons for this become more apparent in an age breakdown of migration, as shown in the following graph.
Figure 5: Graph showing the age related reasons behind Cooma’s stable population. People moving to the Shire between the ages of 25-54 are offset by the loss of 18-24 year olds.
The SEIFA Index of Relative Socio-Economic Disadvantage is a popular measure for how ‘well off’ an area is. This is a score derived from a range of Census data collected for a particular area. Attributes that attract a higher disadvantage score include low income, low educational attainment, high unemployment and number of jobs in relatively unskilled occupations, in addition to other measures.
Cooma-Monaro Shire has SEIFA score of 990.6 based on the 2011 Census, which places it in the 41st percentile when compared to Australia’s total suburbs and localities. However, the northern Shire was in the 82nd percentile whilst the rural and rural residential areas around Cooma were in the 76th percentile. These figures mean that these areas are far less disadvantaged that the remainder of the Shire. Household income figures within the Shire also show there is a large and increasing disparity between the northern Shire and southern Shire, including Cooma (this information can be accessed on Council’s website www.cooma.nsw.gov.au ).
The higher household incomes in the northern parts of the Shire also generally reflect higher land values in these areas. This provides both a means and a motive for development. When market conditions are right, both these factors can combine to create a push for further development. With population growth in the ACT and the capital region forecast over the
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next 20 years, the pressures for further development in the northern Shire are likely to intensify.
Median Weekly Household Income $2,000.00
$1,800.00
$1,600.00
$1,400.00
$1,200.00
$1,000.00 2006 $800.00 2011
$600.00
$400.00
$200.00
$- Michelago & Bredbo Cooma Urban Nimmitabel Numeralla Smiths Road area
Figure 6: Graphs comparing the weekly household income of the Shires settlement areas. These figures should be taken as approximate due to geographical differences in the statistical areas between the 2006 and 2011 Census. However, they are sufficient to show a clear correlation between declining household income in the Shire with increasing distance from Canberra. This disparity is increasing. Source: Australian Bureau of Statistics – Quickstats.
1. Discussion points:
• Is there anything that can be done to positively change the net migration patterns in the Shire? • What impact will an aging population have upon the Shire, and what opportunities does this present? • To what extent should further development be permitted in the northern parts of the Shire?
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3 Strategic Planning - policy context
At present the guiding local document for Strategic Planning is the Strategic Direction 2011- 2030 which was prepared in conjunction with the new Cooma-Monaro Local Environmental Plan 2013. The Strategic Direction sets broad general parameters for the development of the Shire. It provides a good foundation for the Cooma-Monaro Settlements Strategy, which seeks to build upon it.
The Cooma-Monaro Settlements Strategy is an important part of the overall policy framework which guides planning decisions in the Shire. Its place in the framework is shown in the diagram below. Some documents within this framework are still being developed.
Regional Local Level Local Level State Level Level Strategic Regulatory
Cooma-Monaro Local Cooma-Monaro Environmental Plan Settlements Strategy Cooma-Monaro NSW 2021 & South East & Section 94 Statewide Profile Tablelands Contributions Plan 2014 Regional Plan Cooma-Monaro Cooma-Monaro Rural Land Use Development Strategy Control Plan
As the above diagram illustrates, the Cooma-Monaro Settlements Strategy forms part of the local level strategic planning documents. It will be complemented by the Cooma-Monaro Rural Land Use Strategy (not yet prepared). Together these documents will provide the local level direction and vision for development within the whole of the Shire in the 20 year timeframe to 2036. Together these documents will inform and direct the provisions contained within the local level regulatory documents which in turn control individual developments.
Both the Settlements Strategy and the Rural Land Use Strategy will each be designed to complement the South-East and Tablelands Regional Plan, currently being prepared by the Department of Planning and Environment. Within the South–East and Tablelands region, Cooma-Monaro Shire forms part of the Alpine sub-region, along with Snowy River and Bombala Shires. The Regional Plan stems from the priorities and actions identified in the NSW 2021 document, which articulates the State Governments goals till 2021. It is also informed by the more recent NSW Statewide profile, which provides a broad examination of ‘the factors which are shaping growth and change in communities throughout NSW’ (p.4).
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4 Influential factors in the state and regional context
Cooma-Monaro Shire is well located geographically within the south east region. Its proximity to the ACT, NSW snowfields and the south coast, as well as being located in the heart of the Monaro plains, make the area truly unique.
To maximise positive benefits to the Shire over the next 20 years, it is important to look beyond its borders and gain an appreciation of relevant and influential factors in the region and the State that have the potential to impact the Shire in some way. The NSW government has produced a variety of Industry Action Plans in recent years that demonstrate its intentions to grow employment opportunities and business investment and make NSW a destination of choice for investment, opportunity and recreation. It is important the Shire recognise what this means for it, and takes advantage of State Government policy directions to advocate for the local community. The Shire is part of NSW, and to this extent the State Government is working for the Shire as it seeks to work to improve the State. A mindset of partnership in this task will see the Shire realise its maximum potential over the next 20 years.
Figure 7: Cooma-Monaro Shire and its position in the NSW south-east region.
The NSW Government has developed an economic development plan known as the NSW Economic Development Framework. It is based on five key platforms, which are shown below:
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Figure 8: The NSW State Governments Economic Development Framework
Within the Economic Development Framework, there are some important strategies and programs which should be of particular interest to the Shire. These include: • A commitment to deliver Regional Economic Development Strategies to position the regions for long term growth; • A commitment to support small business in various ways; • The delivery of ‘Decade of Decentralisation’ strategies, including the Skilled Regional Relocation incentive and relocation of public sector jobs; • Funding regional infrastructure under the Resources for Regions program and to ‘improve transport corridors from paddock to plate and port’; • Working with local government to help entrepreneurs, particularly in Creative Industries; • The Bridges for the Bush program and Regional Industries Investment Fund • Revitalising Regional Libraries program
An interesting model being trialled by the State Government in areas on the Sydney fringes where there are large numbers of commuters is to create facilities known as ‘Smart Work Hubs’. These are office workplaces set up to offer an alternative to commuting workers besides their normal place of work or working from home. These Hubs provide fast broadband, WI-FI, video conferencing, meeting spaces, kitchens and on-site IT support and are designed for both corporate clients and casual users. Whilst there is no State Government funding available for such a Hub in Cooma, this could be a model that could be explored with large employers in Canberra to make the town more attractive to people employed in Canberra without necessarily having to commute every day to Canberra.
2. Discussion points:
• Are there State Government policies and programs that have been/are being particularly good for the Shire? • What could the Shire advocate for with the State Government on issues affecting planning and development? • Are there infrastructure needs within the Shire that could attract State Government funding?
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Looking beyond NSW government policy, in its immediate regional context there are a number of specific factors which could influence development within the Shire over the next 20 years. These factors include: • The further development of Canberra Airport as an international passenger and freight hub • The development of new employment lands in the ACT ‘Eastern Broadacre’ area including Hume, Symonton, Harmon and Canberra Airport • The relatively intact state of the remnant rail line between Queanbeyan and Cooma, passing through the Eastern Broadacre area, and the strong policy direction of the ACT government towards sustainable development. • The forecast growth of Canberra, the NSW south coast and Snowy River Shire, with the Shire strategically positioned on the only sealed road route between these areas • Continued direction of tourism in the Snowy Mountains to becoming a year round destination, not primarily a winter one • Port of Eden development • A warming climate, including a reduction in the number of frost days in spring, potentially making the area more attractive for diverse agriculture • Projected massive increases in freight volumes across NSW • A 20 year commitment by Dongwha Holdings in Bombala to development and operation of a high tech softwood sawmill and processing factory supplying markets in Sydney and Melbourne • Development of the National Broadband Network in the south east corner of NSW • Maintenance and promotion of the unique landscape and natural amenity of the region • Presence and operation of the new Bega Hospital as a regional medical centre for the south east • Increasing use and development of online and virtual education resources reducing the ‘tyranny of distance’ for higher level educational services in the region • The introduction of broad scale solar battery storage technology for solar PV and electric cars, which could generate local jobs and increase business and household disposable income • The re-commencement of airline services from Snowy Mountains Airport to Sydney from March 2016.
4.1 Canberra Airport vision and development
Canberra Airport has released its Master Plan 2014-2034 which articulates its vision for the further development of the airport over this time period. It has a clear objective to become an international airport both in terms of passengers and freight, and provide a direct link for the region to Asia in particular. It already has the physical facilities built to enable much of its vision to happen, being able to cater for 8 million domestic and international passengers a year and plans in place which would enable up to 12 million passengers to be processed per year. In addition the Master Plan estimates that up to 23000 new jobs could be created within its site by 2034, driven by increased aviation related activities plus expanded office and retail uses, as well as growth in the regional economy. Increased tourism in both Canberra and the Capital Region is seen as a vital part of the realisation of the Airports vision.
This vision for the growth of Canberra Airport is important for Cooma-Monaro Shire. Areas south of Canberra have the greatest potential to benefit from increased aviation activity at the airport because of their relative isolation in the capital region. Areas north of Canberra are much more accessible to day trippers from Sydney and Melbourne utilising either road or rail transport.
The Airport is also within commuting distance from the Shire and its further development, particularly in regard to job creation, could be beneficial for the Shire in terms of attracting new residents prepared to make the commute to the airport for work but live in the Shire.
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Town/Village Distance by road Estimated travel Distance by road Estimated travel to airport* (kms) time to airport* to Hume* time to Hume* (hrs:mins) (hrs:mins) Michelago 52.7 0:43 40.1 0:31 Smiths Road 48.5 0:47 35.9 0:36 Bredbo 80.9 1:01 68.2 0:50 Cooma 115 1:26 102 1:14 Numeralla 130 1:36 118 1:24 Nimmitabel 150 1:50 137 1:39 *Figures generated using www.whereis.com
City Average distance of commute (kms) Average time of commute (hrs:min) Sydney* 20 0:35 Brisbane* 19 0:29 Melbourne* 18 0:32 Canberra** - 0:21 Figure 9: The above tables compare commuting times and distances from locations within the Shire with those in capital cities. *Figures based on 2011 IBM Commuter Pain Study – Australian Fact Sheet - http://www- 03.ibm.com/press/au/en/presskit/33518.wss **Figures based on 2009 HILDA study as quoted in AMP report ‘Race Against Time – How Australian’s spend their time’ Issue 30 November 2011 - http://media.corporate- ir.net/media_files/IROL/21/219073/AMP_NATSEM_Income_&_Wealth_Report_Race_against_time.pdf
The table above shows that areas in the north of the Shire such as Michelago and Smiths Road have commute times by car to current and future employment lands at Hume and Canberra Airport which are comparable to the average commute times for workers in Sydney, Melbourne or Brisbane. However the commute times are substantially more than the average commute in Canberra. Nevertheless, the studies cited above estimate that close to 20% of commutes in Sydney are 45 minutes or greater, meaning that a significant number of people are prepared to undertake longer commutes. Understanding the reasons why people undertake such lengthy commutes and which of these reasons can be positively affected within a new development area in the north of the Shire will be a key aspect in the marketability of such areas in the future.
4.2 Development of the Eastern Broadacre Area within the ACT
The Eastern Broadacre Area is a north south corridor located on the eastern edge of the ACT beginning at Hume in the south and extending more or less along the Monaro Highway north through the airport precinct to Majura Road/Mount Majura. It contains potentially up to 2900 hectares of developable land, being land not constrained by environmental considerations. Land through the corridor has been split up into various precincts, with the main objective in development being to provide employment lands. A report prepared by MacroPlan Australia in 2007 was commissioned by the ACT government as a scoping study to inform the further strategic planning of the ACT, and ultimately informed the ACT 2012 Planning Strategy, which remains the current overall planning strategy for the development of ACT (amongst a suite of other guiding documents). The MacroPlan report identified 10 precincts within the Eastern Broadacre area. The southern most precinct of Hume is of most interest to Cooma-Monaro Shire due to its proximity to northern parts of the Shire both in terms of commuting time and ease of access. It is also located near future employment lands within Queanbeyan City Council’s jurisdiction. With up to 671 hectares of land potentially available, there is significant growth capacity. The MacroPlan report identifies uses likely to be suitable for this area as manufacturing/component assembly, transport/warehouse storage, light industrial and large scale institutional uses/services.
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Figure 10: Extract from the ACT Planning Strategy with the Eastern Broadacre area identified by the solid green line.
The MacroPlan report in 2007 identified a number of opportunities where land within the Eastern Broadacre area has an opportunity to capitalise on its competitive advantages. These are summarised in the table below.
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Figure 11: Extract from the 2007 report by MacroPlan which examined the Eastern Broadacre area.
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Figure 12: Extract from the Canberra Spatial Plan indicating timing of development within the Eastern Broadacre area and associated land uses.
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3. Discussion points:
• What opportunities would development of employment generating uses in the Eastern Broadacre Area in the ACT create in Cooma-Monaro Shire? • Are there complementary business uses from the development of this area that would be best located in Cooma-Monaro Shire?
4.3 Rail line between Queanbeyan and Cooma
The Goulburn Bombala Rail line runs through the Shire in a general north-south direction. The importance of the rail line to the historical development of the Shire is evidenced by the fact that the four major settlements of Michelago, Bredbo, Cooma and Nimmitabel all have railway stations. This was highly influential in their historic development, as the following quote demonstrates:
‘It would be fair to say that without the railway, Cooma may well have remained a regional centre of minor importance, perhaps slowly declining the way of many rural towns. However in 1949, the Railway’s presence was a vital factor in Cooma being chosen as the headquarters of the Snowy Mountains Scheme, an event which dramatically reshaped Cooma….. ‘
(Cooma-Monaro Historical Society, 1999 – ‘Cooma:150 years on’, edited by Suzannah Plowman, Trisha Dixon and Bill Rushton, p.85)
Each of the railway stations that remain are heritage items, with Michelago and Cooma being State heritage items. Cooma railway station and yards remain highly significant as one of the few remaining intact yards of their era in NSW. Several bridges/tunnels are also State listed heritage items and warrant the unique nature of the railway through the Shire.
The railway operated to Cooma for 100 years from 1889 to 1989 when it closed to commercial services. Falling passenger numbers and the large cost of infrastructure maintenance where cited as key reasons for the closure of the line (see http://nswtrains.wikia.com/wiki/Bombala_railway_line ). Since then small parts of the track have been operated, with the Queanbeyan to Michelago section of line operated from 1993 to 2007 by the ACT Division of the Australian Railway Historical Society. It was finally required to close due to storm damage on the line. Similarly, the Cooma-Monaro Railway operated on the section of track from Cooma to Chakola from 1998 until recently when track maintenance requirements became too costly.
A 20 year forward planning horizon presents an opportunity to revisit what role, if any, railway could play in the further development of the Shire. Despite the fact that the maintenance needs increase with every passing year, the railway is still considered a relevant consideration in planning and economic development in the Shire till 2036 for the following reasons: • It continues to occupy a highly significant transport corridor in the region; • It presents an opportunity to develop an alternative public transport option in the south east, which at present is solely reliant on road transport. • It would be an opportunity to transfer freight in the region from some parts of the Monaro Highway to rail, reducing the maintenance burden on the Monaro Highway and improving its safety, particularly given the major tourist traffic utilising it. • The operations and economics resulting in closure of the line in 1989 were oriented around services to and from Sydney, however this orientation could now be reset to focus primarily on services to and from Canberra. This changes the operations and economics of the line.
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• It would complement many of the objectives of long term planning in the ACT, such as reinforcing the role of Canberra as the primary city in the region and promoting more environmentally friendly modes of transport • It would enable the development of a rail commuting corridor from future residential development areas in Michelago, Bredbo and Cooma connecting directly to employment lands in the ACT • Construction of a small 5 kilometre spur line to Canberra Airport branching off the existing line near HMAS Harmon would directly link the south-east region by rail to international destinations providing efficient passenger, freight and tourism options for movement • It would reduce the congestion on the Monaro Highway and other key roads in southern Canberra, which are forecast to be operating above capacity by 2036 (SMEC 2008 – ‘Eastern Broadacre Traffic and Transport Modelling - Final Report - Reference 3002154’) • It presents an opportunity for innovation in rail travel and use, as the traditional state owned and operated rail system may not be the only option for rail use on the line, particularly given it is a branch line and relatively independent of the rest of the state rail system. • It presents an opportunity for innovation in rail infrastructure and trains, for example solar powered trains (currently on trial in India), and also in the operational systems for a rail line (eg combine passenger services and light freight). • Tourist railways have operated on the line in the recent past and they could be expanded into regional tourist attractions
Some sections of the existing rail line have greater impediments than others to re-opening and commencing operations. The section from Queanbeyan to Michelago has the least significant impediments, with no major bridges and only one significant level crossing on Old Cooma Road. The section from Michelago to Cooma has greater impediments, with several major bridges and crossings of the Monaro Highway, but the majority of the trackwork is still in place. The section from Cooma to Bombala has the most impediments to re-opening, with major bridges, highway crossings, missing sections of track and other degradations. However within this section, between Cooma and Nimmitabel the track is largely intact and has only a single crossing of the Monaro Highway (a second highway crossing at Nimmitabel could be avoided by a terminus on the northern edge of the town).
From the point of view of the development of the Shire, it would be most desirable if the railway line re-opened at least to Cooma. Beyond Cooma a dedicated freight line to Nimmitabel would be ideal. It is difficult to estimate the capital costs of re-opening the rail line to these destinations. They would likely be in the tens of millions of dollars. However it is understood that John Holland Rail, who currently manage the country rail network on behalf of Transport for NSW, are generally open to the prospect of re-opening rail lines and would have no in principle objection provided solid economic justification for doing so is provided.
The major costs components of any justification for re-opening the line would need to cover the capital costs as well as the operating and on-going maintenance costs of the line. The following table summarises some of these major components and even in this simplistic fashion demonstrates the complexity of running a rail line:
Component Inventory Probable source of funding
Initial capital cost Replacement of bridges Federal, state and local government grants Clearing of vegetation Industry contributions Replacement of sleepers, track & ballast Private investment Road crossings Stabilisation of failing sections of track Stabilisation of cuttings, tunnels, etc Refurbishment of stations Acquisition of rolling stock and locomotives
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On-going operating costs Electricity and fuel Cost recovery from operation of service Staff salaries Operating system Insurance On-going maintenance costs Trackwork Cost recovery from operation of service Signalling Bridge and crossing repairs
IPART has produced a number of reports into the costs and efficiency of different components of the NSW rail network over recent years (eg IPART 2011, report prepared by Booz&co. – ‘Review of Efficient Maintenance Costs of Railcorp’s Hunter Valley Coal Network’), and the Federal government commissioned its own study (NSW Grain Freight Review) into the economic case for preserving NSW grain handling branch lines. Whilst each line is unique and has its own particular challenges and costs, using an indicative annual maintenance cost of $22000 per track kilometre for a single 100 kilometre line of track produces an annual maintenance cost of $2.2 million and for arguments sake an operating cost of $800,000, a figure of $3 million dollars for annual operating and maintenance costs could be arrived at. Assuming a return ticket from Canberra to Cooma was priced at $10 (cost competitive with driving), to raise $3 million in annual revenue solely from ticket sales would require 300,000 return passenger trips from Cooma to Canberra per year. Ignoring weekends, this equates to 1154 return commutes per weekday. To put this number of commuters in perspective, according to Sydney Trains (http://www.sydneytrains.info/about/facts ) a single eight carriage train in Sydney can move 1000 customers. At the time of the 2011 Census, 213 (or 7% of Cooma’s workforce) indicated that they travelled to a workplace in the ACT. In reality not all of these commuters would choose to utilise a train service even if it were available at a comparable cost to car use. However, if they did that is 18% of the 1154 return commutes that in this example would be necessary to cover the cost of the service. It may well be that the remaining 82% (941 commuters) may be attracted if a train was actually available. And this is just for Cooma. Commuters could also be picked up from an expanded Bredbo and Michelago (and Royalla??). Whilst the missing percentage of commuters is large, the overall numbers of commuters required is small, making it more achievable. There would also be potential to generate other income from advertising on the trains, and by using passenger trains to move light freight to Canberra Airport. These are all aspects of the potential case for reopening the line that would require further research.
In the above example, there was also no calculation of the impact of heavy rail freight on the overall cost of operating the service. Dedicated freight branch lines in NSW have come under scrutiny in recent years with investigations conducted by both the NSW and Australian governments into the viability of NSW grain lines (Australian Government 2009 – ‘NSW Grain Freight Review’ & IPART 2011 – ‘Operational costs for transporting grain from silos on the NSW Country Rail Network to Ports at Newcastle or Port Kembla by rail and road’). These reviews have found on what appears to be a fairly consistent basis that movement of bulk freight, in this case grain, to export ports at Newcastle and Port Kembla by rail is consistently more efficient than movement by road. One such example, the Cowra to Koorawatha line, is a branch line included in the IPART 2011 report which closely resembles the Cooma to Queanbeyan line in terms of length of the branch line and distance to port by road and rail. It also carries annually about 67000 tonnes of grain per annum which is about 25% below the average haulage amount for NSW grain lines. However even on this line the table below (based on 2011 costings) shows that rail direct to port equates to about half the cost of road direct to port. Rail is also much more efficient in terms of loading and unloading.
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Figure 13: Extract from IPART report investigating road versus rail grain freight in NSW p.74. Note that an access charge has been excluded from the rail calculations. This is the cost of a freight company using the rail line, and historically has been heavily subsidised by government. However road use by trucks also has a government subsidy for maintenance of roads which is borne by all three tiers of government.
The IPART report is obviously based on a number of assumptions regarding road and rail freight costs. These assumptions have been included below because, regardless of whether or not one agrees with the figures used, they provide a useful comparison of the different elements and carrying capacities of the two different modes of freight transport.
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Figure 14: Extract from the IPART commissioned report showing comparative assumptions in the different elements of road and rail freight. In the rail table, it should be noted that consist 1 and 2 require a higher standard of track, and are thus bigger trains, than those in consists 3-5 (which are all the same). A consist is a term used to describe a type of train. Note that the payload of a single lighter train wagon (52t) is 18% greater than the maximum payload of a B-double (44.4t)
On a freight only line, an average of one freight train per week may be all that is required to make a line financially viable. Rail freight also has a cost saving in terms of saved road maintenance costs built into it which would need to be taken into account. Rail generally seems to be accepted as a much more efficient means of transport and more environmentally sustainable. These aspects of rail freight are considered to be in the broader public interest and for these reason warrant continued government involvement and investment. However, there are examples overseas, particularly in the United States and Canada (for example http://www.railcan.ca/rac/member_railways?type=Freight+- +Short+Line%2fRegional ), of privately owned and operated regional rail lines that appear to be operating successfully on proven business models under local ownership. Could such an option be possible in Cooma as a means of revitalising local rail transport? Much depends on the freight capacity of the region and would require further feasibility work beyond the scope of this discussion paper.
A third use for the railway line may be as a tourist railway. The Cooma-Monaro Railway and the Queanbeyan to Michelago railway, both of which operated since the closure of the line to state services, have both now ceased operation. However the unique rail infrastructure in the area and the continued existence of the Cooma Heritage railway provide scope for re- opening of a tourist railway in the future again if the track was brought up to standard. A fully re-opened track would also open the possibility of novelty rail experiences such as steam train rides in the area which would be a further tourist attraction.
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Figure 15: An imaginative idea for future light and heavy rail transport in Canberra and the south east NSW region. Source – University of Canberra - CURF Working Paper 5 – Light rail transit and residential density in mid-size cities – June 2015
Figure 16: Is this possible? A direct train route south from the airport would require a 5km extension from the existing rail line near Queanbeyan, akin to something like that shown above. Distances shown are from Michelago Train Station. Stations at Canberra Airport (53km), HMAS Harman/Queanbeyan West (48km), Hume (42km), Royalla (26km) and Michelago (0km) with potential for re-opening of the line to Bredbo, Cooma and Bombala.
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Figure 17: Traffic Modelling from SMEC Report ‘Eastern Broadacre Traffic and Transport Modelling Final Report September 2008 p.45 & 51. These are based on recommended network changes having occurred by the years 2031 (left) and 2051 (right). Monaro Highway and Old Cooma Road are highlighted in yellow (emphasis added). The modelling shows these roads will be over capacity in both instances depicted above. Additional traffic from new development in Cooma-Monaro Shire would further contribute to congestion on these roads, providing further justification for reopening the rail line in conjunction with such development.
The above discussion highlights some of the issues and considerations involved in the operation of a rail line. Whilst the capital cost of bringing the Queanbeyan to Cooma railway up to modern standards would likely be in the order of tens of millions of dollars, this should not mean that the possibility of re-opening the line is immediately dismissed. The world and technology has changed in many ways since the line closed in 1989. Population in the region has increased, and the economics and nature of freight has changed. Tourism in the area is changing, and the further development of Canberra Airport may present a tantalising opportunity for a truly unique road/rail/air link for the south east region to the world. The prestige of such an arrangement may attract government and private interest and investment. Ultimately the feasibility of re-opening the railway may not lie in any single market, or in traditional rigid timetable driven passenger trains or state operated systems or bulk freight trains 40 wagons long. It may lie in a combination of commuter, intra and interstate services, tourist and light freight opportunities possibly operated in a private/public partnership between local businesses and local government and more closely aligned to local demands for services (eg using online apps to book a train), rather than timetable driven to fit into a statewide system. The railway does present an opportunity to provide a train service, whether passenger, freight, tourist or any combination of these at least to Canberra that is completely independent of the broader NSW rail system. For outside-the- box thinkers and entrepreneurs is this an opportunity for innovation and investment?
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4. Discussion points:
• Would there be any benefit to business and industry in the south-east region of a rail freight service operating from Cooma to destinations such as Canberra Airport and NSW ports? • Should the Council spend money to conduct a more detailed feasibility study into re- opening the rail line to Cooma? • Would a commuter rail service from Michelago, Bredbo or Cooma to Canberra be utilised? What impact would it have on development in these areas? • How could innovation play a role in the resumption of train services in the area? • Could a re-opened rail line be operated privately, or in a public/private partnership?
Imagine this!!: Tourists arrive at Canberra Airport direct from interstate and overseas destinations. They can catch a light rail service from the Airport visiting all major destinations in the parliamentary triangle before returning to an interchange at the airport where they can board a privately operated rail service through the scenic Monaro landscape to Cooma. Here they find restaurants, local interest tours and accommodation and a connecting bus service to the attractions of Jindabyne and the Snowy Mountains, which returns to Cooma railway station, at which point a shuttle bus service connects via Bombala or Bega to a cruise ship at Port of Eden where they commence a cruise along the eastern coast, and/or to a New Zealand destination. Meanwhile the train which came to Cooma full of tourists direct from planes times its return to Canberra to coincide with the morning commute, delivering industrial, retail and commercial employees from the Canberra-Cooma corridor to employment lands from Hume to Canberra Airport. It also carries light freight from local south east region businesses. At the airport the light freight is despatched direct to domestic and international markets, who bought from businesses in the south-east region over the internet assisted by the operation of the NBN. The businesses and commuters choose to locate in Cooma and other parts of the south east region because of the high natural amenity, access to city, snow and surf, and smooth, affordable and efficient freight movement with easy access to national and international markets, and relatively low cost of land and housing.
4.4 Positioning of Cooma-Monaro between growing areas
As highlighted earlier in the report one of Cooma Monaro Shire’s advantages is its location centrally within the south-east region of NSW. It is within 120 kilometres by road of Canberra CBD, Bega and Perisher Valley. Each of these locations are within local government areas forecast to grow over the 20 year planning horizon to 2036. These forecasts are shown in the table below:
Area Forecast growth rate 2011-2031 Forecast actual no. of persons 2011- 2031 ACT* 1.7% +124551 Bega Valley Shire 0.5% +3300 Snowy River Shire 0.5% +900 Cooma-Monaro Shire 0.3% +600 Bombala -0.6% -300 *Population projections for the ACT are for years 2012-2032, based on ACT Government Treasury estimates. Source for other information: NSW Regional Population Projections data, www.planning.nsw.gov.au.
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Being located in proximity to growing areas may provide a comparative advantage to Cooma in terms of a location for some particular industries and service providers. In addition Cooma’s relatively affordable real estate may provide an additional incentive to locate in Cooma.
It noteworthy that at a national level most recent jobs growth has been in the services sector. The health and education industries within the services sector are demonstrating the most employment growth and this is forecast to continue at least in the shorter term.
Figure 18: Data from the ABS compiled by .ID in a presentation of the importance of place for regional economic growth.
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In Cooma-Monaro Shire Health Care and Social Assistance employment grew from 9.2% (409 persons) of the Shire’s workforce to 10.7% (480 persons) between the 2006 and 2011 Census. However in both years the percentage of the Shire’s workforce engaged in Health Care and Social Assistance was slightly lower than the equivalent figure for NSW, however this gap closed from 1.3% in 2006 to 0.9% in 2011. As the general population ages, it would be expected that this percentage gap will close further as the Shires population is older than that of NSW (eg Shire median age 43, NSW 38). This presents an opportunity for potential employment growth in the health sector within the Shire in the future.
What can be done to encourage and facilitate growth in services sector employment in the Shire? Part of the answer may be in determining what place advantages the Shire, town and villages have and what can be done to enhance these. In terms of what are the most attractive aspects of a place to the service sector, the .ID analysis cites a Colliers Tenant Survey in 2012 which found 76% of people surveyed found public transport important, 51% found service related amenity important and 51% found accessibility/central location important. As the majority of employment in Australia is located within cities, the results of this survey are likely heavily skewed towards urban environments, however it does highlight the types of considerations that are important to the service sector. It may be that these aspects can be improved within the Shire.
Cooma as a whole has a less qualified workforce than the whole NSW. It is significant that in the 2011 Census 41% of the Shire’s workforce had no qualifications, compared to 34.6% for NSW. This may present a case for the need for further education resources and/or programs within the Shire. A more diverse and broadly qualified community is an attraction for new employers seeking to start a business in the Shire.
5. Discussion points:
• What kind of industries and business would be attracted to Cooma as a strategic location? • How can Cooma and the villages improve their sense of place in a way that could enhance clusters of particular types of business and industry which feed off each others services? • What could be done to facilitate formation of an industry cluster related to health services in Shire?
4.5 Tourism in the Snowy Mountains
The Snowy Mountains region received almost 1.1 million visitors in the year ending in June 2015 (http://www.destinationnsw.com.au/wp-content/uploads/2015/11/Snowy-Mountains- time-series-YE-Jun-15.pdf ). The region consists mostly of the local government areas of Cooma-Monaro, Snowy River and Bombala, but also includes Tumut and Tumbarumba. The visitor numbers to the region in the year to June 2015 included about 2.3% (645,000) of the total domestic overnight visitors to NSW and 0.6% (19,200) of total international overnight visitors to NSW. The remaining visitors were day trippers. During this same year visitors to the Snowy Mountains region spent a total of $543 million in the area. By way of comparison the estimated gross regional product of Cooma-Monaro Shire in the year ended June 2014 was $547 million.
Over time the number of tourist visitors and the total spending in the region has remained relatively stable, although some significant fluctuations are evident from year to year. As the charts below demonstrate though, total spending does not always reflect the total visitor numbers to the region (eg 2012 was a peak visitor year but spending was down).
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Snowy Mountains Region - Total visitors - overnight and daytrips ('000) 1,600 1,400 1,200 1,000 800 600 400 200 0 YE June YE June YE June YE June YE June YE June YE June YE June YE June YE June 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Figure 19: The number of visitors to the Snowy Mountains Region over the last decade. Source: Destination NSW – www.destinationnsw.com.au
Snowy Mountains Region - Total visitor spend - overnight and daytrips ($million) $700
$600
$500
$400
$300
$200
$100
$- YE June YE June YE June YE June YE June YE June YE June YE June YE June YE June 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Figure 20: The total estimated spending by visitors to the Snowy Mountains Region over the last decade. Source: Destination NSW – www.destinationnsw.com.au
There has been a recent push within the Snowy Mountains Region to boost tourism numbers, but in particular to boost non-ski season tourist numbers. Time will tell if this proves to be a successful strategy.
In the Shire tourism provides a significant boost to the local economy, estimated in 2013/14 to be $26.5 million (http://economy.id.com.au/cooma-monaro/tourism-value ). There are planning and land use issues resulting from tourism which need to be addressed, such as: • the increasing use of dwelling houses for short term rental accommodation, impacting residential areas,
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• what should be the types and quality of accommodation experiences possible or available in the Shire more generally? • where is the best location for tourist generating land uses? • are existing tourist focus points, such as Cooma CBD, easy for tourists to access, in terms of parking, disabled access, etc? This includes consideration of caravan and trailer parking. There were well over half a million RVs registered in Australia in 2013 with 90% of these being towed vehicles. The numbers of RVs in Australia is predicted to grow over the next 20 years at annual rates above 5% (Caravan Industry Association of Australia – Submission in response to the 2014 review of the Motor Vehicles Standards Act 1989 – 17 October 2014).
6. Discussion points:
• Are there policy changes or directions required from Council to address tourism related issues? • Should tourist related development be located in residential areas? • Does the Shire adequately cater for RV’s by providing easily identifiable parking and access close to tourist hotspots?
4.6 Port of Eden development
The proposed further development of the Port of Eden is significant for the region, including Cooma-Monaro Shire, in that it represents a possible boost to tourism in the area and also offers a more accessible export and import port to the south east region.
The Port of Eden Strategy prepared by Bega Valley Shire Council suggests that the key advantages of the further development of the Port include the following: • Its strategic position half way between the ports of Sydney and Melbourne • The depth and navigability of the harbour • Its potential for multiple uses – exports, base for marine fishing, cruise ship berths, super yachts, resort, marine research and tourist facilities, renewable wave power generation plant.
This may benefit Cooma-Monaro agricultural producers and other export oriented businesses. It may also benefit the Shire if the Port is used to provide tourist access to Canberra as the Shire lies on the transport corridor between the Port and Canberra. Additionally, Cooma may be a strategic location for businesses which require access to both the Port and Canberra as it is located roughly midway between the two locations.
The Port has already to date handled international cruise ships with a capacity of up to 1800 passengers and has an 8 hectare secure storage area available for short term use (http://edenport.com.au/port_facilities_and_services ).
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Figure 21: Extract from the ‘Port of Eden Strategy’ prepared by Bega Valley Shire Council (p.2) showing the proposed further development.
7. Discussion points:
• Does expansion of the Port of Eden present opportunities for Cooma-Monaro Shire business or industry? • Would Cooma be a strategic location for business and industry associated with both the Port and Canberra or other south east areas?
4.7 Forecast increase in the national and state freight task
The NSW Freight and Ports Strategy is a key strategic document produced by the NSW government in 2012. It examines and documents the NSW freight task, which is immense, and outlines strategies to ensure that it continues to work as efficiently as possible into the future. It estimates that freight transport’s gross value added to the NSW gross state product in 2011 was $58 billion and the total number of people in NSW working in freight logistics was 500,000 or nearly 14% of the total NSW employed workforce. In addition the value of the freight products moved each year in NSW is estimated to be in excess of $200 billion.
The Freight Strategy itself focuses upon three key elements of freight: • Network efficiency • Network capacity • Network sustainability
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It recommends a variety of actions be taken under each of these key elements to ensure that the NSW freight task over coming years is working at its optimum. In the 20 years from 2011 to 2031, the volume of freight to be moved in NSW is expected to grow from 409 million tonnes to 794 million tonnes. This is immense growth, and whilst about half of the freight is and will continue to be coal, the forecast increase in all other freight is still very significant. However this forecast increase also represents an opportunity and it is important for the Shire grapple with what this may mean for its own development over the next 20 years.
Figure 22: Forecast growth in freight till 2031 – NSW Freight and Ports Strategy, p.19.
The above graph shows that there is significant forecast freight growth in industries such as meat and livestock; retail, timber and paper; manufacturing; and building and construction which are all local industries within the Shire. However the following two graphs show that the overwhelming amount of freight carried in NSW is by road, and that from the Shire’s perspective the key road corridor linking the Shire to Sydney, namely the Hume Highway, will almost double the volume of road freight carried north of the Illawarra Highway by 2031.
The dominance of road transport and the anticipated future congestion and maintenance needs of roads on key freight corridors from the Shire may result in a comparative disadvantage for the south east in terms of business freight costs in time and money. This may result in a dis-incentive for business and industry investment in the area in the future. The Monaro Highway at present carries virtually all freight to and from the Shire. Although the overall freight volume in south-east NSW is comparatively low, a complete reliance on road freight may not be advantageous if the anticipated doubling of the freight task for NSW is also realised in the south east region. It may be that this situation provides an opportunity for the freight task to be shared in the south east by new investment in rail and air infrastructure. It also may require a re-orientation of the freight destinations from the Shire to Canberra Airport and the Port of Eden.
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Figure 23: The mode by which key commodities are transported, showing the dominance of road transport in the NSW freight task.
Figure 24: Freight on the Hume Highway close to Sydney is set to almost double by 2031.
The following graph shows that the Shire has clear local advantages over NSW in the production of hay, wool and livestock slaughterings. Both wool and meat can be carried by rail and already are in other parts of the State. Retail goods, and other smaller agricultural products can be carried by air freight.
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Figure 25: The value of agricultural commodities in the Shire in percentage terms. The total value of agricultural production in the Shire in 2010/11 was $25 million. Livestock slaughterings and wool account for 92.1% of production.
Breakdown in $value of livestock slaughterings from Cooma-Monaro Shire 10,000,000 9,153,207 9,000,000
8,000,000
7,000,000
6,000,000 5,588,801
5,000,000 $value 2010/11 4,000,000
3,000,000
2,000,000
1,000,000 2,114 2,661 11,093 0 Sheep and Cattle & Pigs Poultry Goats lambs calves
Figure 26: Dollar value and breakdown of livestock slaughterings in the Shire showing the dominance of sheep and cattle.
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Figure 27: The NSW Freight intermodal network. Note the lack of an intermodal freight option in the Monaro region. Source: NSW Freight and Ports Strategy.
The NSW Freight and Ports Strategy states that the NSW government is open to innovative ideas that will support the aims of the strategy in regard to freight movement. These are known as ‘unsolicited proposals’ and the strategy contains the following guidance on how to approach the government regarding such a proposal.
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Figure 28: Regional NSW breakdowns of the top 5 commodity types by volume (above) and value (below). Source: NSW Freight and Ports Strategy, p.35-36.
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8. Discussion points:
• Are there opportunities for freight to be moved more efficiently to and from the Shire as the freight task grows over the next 20 years? • Is there potential for a freight intermodal centre serving the south east region at Cooma (or Nimmitabel) with transfer from truck to rail or air transport? • What commodities is the Shire likely to import/export over the next 20 years? • Does local industry have ideas on how to improve freight efficiencies? • What pressures are likely to come upon the Monaro Highway if no alternative modes of freight are provided? Are these acceptable? Sustainable?
4.8 A warming climate
The NSW Office of Environment and Heritage has now produced detailed climate change projections for all of NSW. Projections are available in statewide, regional or 10km grid squares at http://www.climatechange.environment.nsw.gov.au. Key changes for the Shire are shown in the following maps.
Figure 29: Climate projections 2020-2039 showing an increase in summer and autumn rainfall in the region and a decrease in winter and spring rainfall. Source: South East and Tablelands Climate Change snapshot.
There is also a forecast decrease in the number of cold nights in the region in the near future as shown in the map below, which predicts 10-20 fewer cold nights by 2039. However by 2070 the number of cold nights is predicted to decrease by up to 40, which if realised have the potential to cut the length of the winter ski season considerably.
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Figure 30: Changes in the number of cold nights projected over the next 25 years. Source: South East and Tablelands Climate Change snapshot.
Further to the above changes, other changes in relation to temperature, frequency of heatwaves and high fire days are all predicted to change during the life of the 20 year planning horizon to 2036. These further changes are summarised as follows:
Figure 31: Source: South East and Tablelands Climate Change snapshot.
These projected climate changes occurring over the life of the Settlement Strategy may have a significant impact on land use and economic development of the Shire. It may be possible that due to the decreasing number of cold nights and increasing summer rainfall the region will be more productive in terms of agriculture and be capable of producing a more diverse range of agricultural produce. This may in turn stimulate investment and growth in the local agricultural industry with flow on implications to freight movement and local secondary business growth. However the boost to the local economy provided by the winter ski season may decrease during by 2036. This will have an impact on retail trade within the town.
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9. Discussion points:
• How will climate change impact on land use in the Shire over the next 20 years? • In what ways might the changes be beneficial to industry in the region? How can this be maximised? • What will be the impact on the retail and accommodation sector? What strategies can be put in place to minimise disruption to this industry from climate change? • Are there any implications for the design of buildings in the region from the projected changes?
4.9 Expansion of the sawmill in Bombala
The sawmill in Bombala first commenced operations in 1979 but in September 2010 received an approval from the Minister for Planning under the (then) Part 3A of the Environmental Planning and Assessment Act 1979 to significantly expand operations. This expansion has been driven by the investment of Dongwha Timbers, a Korean company specialising in the harvesting and manufacture of timber products.
The expanded mill has since been constructed and is currently in production, with a capacity to process up to 400,000 tonnes per annum of logs harvested from around the Bombala region. Post construction the plant was forecast to provide an additional 23 jobs when operating at full capacity, to supplement the 89 people already employed prior to the expansion. The capital investment value of the expansion project was $65 million (Willmott Timbers – Preliminary Environmental Assessment, November 2007 and NSW Department of Planning – Environmental Assessment Report – MP 07_0161).
The presence of the Port of Eden relatively close to the site appears to have been significant for the company in its strategic decision to locate at Bombala. The Port provides access to international export markets. However a significant amount of production from the facility is also aimed at supplying the domestic market in Sydney, Melbourne, Canberra and Brisbane.
Cooma-Monaro Shire is located within one possible supply route to these markets, particularly to Canberra and Sydney. This may provide opportunities for the Shire to derive some benefit from the presence of the mill in Bombala. As Cooma is located midway between Canberra and Bombala, it may also be a strategic location for secondary timber industry businesses which require access to the timber supply in Bombala and the sales and employment markets in Canberra.
Dongwha Timbers is understood to have made at least a 20 year commitment to the sawmill, meaning that it could be expected to operate throughout the planning horizon to 2036. One interesting question is whether transport efficiencies in the domestic market for the mill would be gained by having access to a rail freight intermodal facility in Cooma or Nimmitabel. If so this may be an opportunity to gain significant benefit to the Shire from the presence of the Bombala mill. In terms of capacity, a ‘light’ freight train which operates on dedicated grain freight lines throughout the state consists of 40 wagons with a payload of 52 tonnes each, resulting in a total payload per train of 2080 tonnes. At one freight train per week a total of 108,160 tonnes of payload would be moved annually in this scenario. This is 27% of the 400,000 tonnes of annual log input to the sawmill which was estimated in its preliminary assessment. Noting that some of this volume would be lost during the production process and some would be exported via Port of Eden, 27% may well be a reasonable figure in terms of tonnage to the domestic market. If so, transport by rail from Cooma may well provide economic benefits to the mill and make the case for re-opening the rail line to Cooma and/or Nimmitabel more feasible. One freight train per week may of itself make the line feasible but would have the additional benefit of not conflicting with any passenger or tourist services on the same line.
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10. Discussion points:
• Would the mill benefit if rail freight was an option at Cooma? Would it use such a service? • What types of secondary timber businesses might strategically locate at Cooma? • Would use of the rail line by the mill make re-opening the line a feasible option?
4.10 Development of the NBN in the south east
According to the three year construction plan of NBN Co. published on their website (www.nbnco.com.au ), the NBN will be built in Cooma and Polo Flat in the first quarter of 2017 providing fibre to the node technology. Fixed wireless technology is already under construction in the surrounding areas of Adaminaby, Nimmitabel and Numeralla.
Some of the benefits which being connected to the NBN will bring to homes and businesses are listed on the NBN Co. website. Extracts from the website are provided below.
From a planning and land use point of view, if the NBN does provide the freedom and flexibility it claims it can, removing the tyranny of distance as far as many aspects of employment, education and health care in particular are concerned, then it will likely have a major influence on how people choose where they will live. Traditional factors such as being close to a place of work or transport may not be as important for people, whereas factors such as natural amenity and proximity to recreational facilities may be more important in determining where people choose to live. As such a change could be a substantial advantage for the Shire’s settlement areas, it would be prudent for the area to do all it can to enhance its amenity and recreational facilities as these could become a key battleground for attracting the new residents of the future in an NBN connected Australia.
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Figure 32: Extract from the NBN Co. website listing some of the potential benefits for business (above) and home (below) of being connected to the NBN. Source: www.nbnco.com.au.
11. Discussion points:
• What impact will the NBN have on the Shire? • In what local industries or areas will the tyranny of distance be reduced or removed by the NBN? What impact will this have? • How will the NBN change land use in the Shire and what positive/negative impacts will this create? • What impact, if any, would more people working from home have upon the Cooma CBD?
4.11 Maintenance of the region’s unique natural landscape and open space
The Monaro landscape is distinctive and unique. There are very few areas of natural grassland and undulating topography in all of Australia. The grasslands provide a feeling of space and freedom that can evoke a strong sense of place and pleasing sense of relaxation in people. It has a ‘big sky’ feel in places which is reminiscent of many of the flatter, drier areas in the western parts of the state. Continuing to ensure that further development in the Shire does not impact significantly on this landscape is an important concern.
But there is also variation in the landscape within the region, including secluded forested woodlands and forests and the wetter forests of the coastal escarpment as well as the alpine forests of the Snowy Mountains.
It is likely these natural areas will become more valuable to the Shire and region as time goes on, because they provide a sharp contrast to the highly urbanised Australian environment and evoke feelings of escape and freedom. Increasingly in the future, people make seek out areas such as this in which to live.
But open space also has value at the smaller scale amongst and in close proximity to settlement areas. Historically many existing areas of public open space have remained so due to their status as Crown Land. However this may result in their lack of management and
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degradation over the longer term, increasing the likelihood cash strapped state governments may seek to sell them off to private interests.
Open space is an important public good which can often have the effect of enhancing property values in close proximity to it. This must be balanced against the cost of maintaining it, particularly in terms of the costs of bushfire hazard reduction and weed control.
The presence of open space areas in close proximity to settlement areas needs to be considered in the 20 year planning horizon in the Shire.
12. Discussion points:
• Should the Council take greater ownership of areas of open space around the settlements in the Shire? • Would ratepayers accept a higher cost to have better quantities and quality open space available for public use?
4.12 Development of Bega Hospital as a major south east regional medical centre
The new South East Regional Hospital at Bega is due to open in March 2016. At a cost of $187 million, the new hospital will consolidate a number of aspects of health care into the one location.
Whilst the main focus of the new hospital is to provide a facility for the residents of Bega Valley Shire, Cooma-Monaro Shire residents will benefit from the additional medical facilities and specialists available at the hospital.
The new hospital will be less than 90 minutes by road from Cooma, and a similar distance to medical facilities presently available in Canberra. As such it will provide further healthcare options for Shire residents beyond those available in Cooma. Additionally, as Cooma is located midway between Bega and the ACT, the town may occupy a strategically convenient position for any number of specialist health care providers. In addition, there may be further opportunities for the Shire to capitalise on the employment growth that is anticipated to continue in the health care services sector.
13. Discussion points:
• What will be the impact of the new South East Regional Hospital on health care services in Cooma? • Will the new hospital enhance Cooma’s strategic location between Bega and Canberra is any way that will benefit the Shire?
4.13 Increasing use and development of online and virtual educational resources
The Shire has 10 schools, five in Cooma and 5 spread across the remainder of the Shire. In general terms the Shire is quite well catered for in terms of the educational needs to children. At a tertiary level Cooma has a TAFE and the recently developed universities centre, which provides opportunities for a long distance university education.
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The availability of good educational resources is an important consideration for people when deciding where to live. In a population profile of the Shire, shown below, the Shire has a disproportionately lower number of people aged 20-39 than Australia. There are a number of reasons for this, but one of them is education. Many younger people leave Cooma in part to receive tertiary education elsewhere in a larger city. Additionally, parents with high achieving school age children may be reluctant to locate to the Shire due to a perceived lack of education facilities able to cater for the specific needs of their child.
It is in these areas that the continuing advancement of online and virtual classrooms may be able to assist. For example there is at present a NSW selective school that has been developed to be totally online, and Cooma schools are elligible participating ‘host’ schools for students who attend the college.
Figure 33: 5 year age group graph of the Shire population showing the disproportionately lower representation of 20-39 year olds.
14. Discussion points:
• How will the development of online educational resources influence the population age composition of the Shire? • Will this have flow on impacts upon development? • Will the Shire become a more attractive place to live an online education resources develop?
4.14 Conversion to solar battery and electric car technology
At first this final consideration may not seem particularly relevant to the development of the Shire, however Australia is shortly to be inundated with the large scale retailing of batteries capable of serving houses in conjunction with rooftop solar PV technology. It is also anticipated such batteries will be used to drive a dramatic uptake in the number of electric cars in use in Australia.
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At a cost of $10000 each with a payback period of 10 years, it is expected that about half of all Australian households will install the battery technology in a market that could grow to $24 billion during the 20 year planning horizon (Climate Council of Australia Limited 2015 – ‘Powerful Potential: Battery Storage for Renewable Energy and Electric Cars’, p.20) . Australia is viewed as a lucrative market by overseas companies due to the abundance of sunshine and the capacity of the population to undergo a ‘megashift’ in their household technology in a relatively short period of time.
The global market for battery storage in conjunction with solar PV panels is expected to grow from 90 megawatts in 2014 to 900 megawatts in 2018 according to the Clean Energy Council, which is a tenfold increase in capacity. The installation of such systems on a wide scale in Australia, and particularly in the south-east NSW region, will create jobs and business opportunities which may make Cooma, being centrally located in the south east, an attractive place to invest. The technology will also free up household and business disposable income which may have other flow on effects in local communities.
The technology may mean that new subdivisions in the Shire will potentially be able to formulate their own solar electricity supply systems and use the guaranteed cheaper associated electricity costs as a selling point for the subdivision. It is also noteworthy that some towns in Australia, such as Uralla in northern NSW and Newstead near Bendigo in Victoria have collectively set their own goals of being completely self sufficient towns in terms of their electricity needs within a decade. This goal will be realised largely through local renewable energy generation and storage. Whatever one’s opinion of such efforts are, they would clearly contribute to community spirit and resolve and provide a significant point of difference from other towns which may attract new residents and business investment wanting to be a part of it.
15. Discussion points:
• Is there capacity for new jobs and industry in Cooma as a result of the anticipated market changes in the household electricity market? • Should there be specific provisions in Council’s planning controls to encourage or require the use of such technology in new development? • Can these changes be used in any way to foster a stronger sense of community in the Shire’s settlements, such as by the collective local use of solar PV and battery technology?
4.15 Re-commencement of passenger air services from Snowy Mountains Airport
Regional Express Airlines recently announced their intention to re-commence passenger airline flights from Snowy Mountains Airport near Cooma. Services are intended to resume from March 2016 and will provide a weekday daily return flight from Sydney all year round. Additional services on and around weekends will be provided during the ski season to cater for additional demand.
The presence of an air service in the Monaro region is significant and substantially improves connectivity of the region, in this case initially with Sydney. It is anticipated this will help enhance tourism and business in the region.
The resumption of operations at Snowy Mountains Airport may also present an opportunity for air freight services to and from the Monaro region to be explored. This may be an important consideration for the region over the 20 year planning horizon.
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16. Discussion points:
• What impact will resumption of air services have on Cooma? • Are there particular business and industry groups that will benefit? • What new business and industry could be attracted to the region by the presence of an air service? • Is there an opportunity for air freight services from Snowy Mountains Airport? Would they benefit the region?
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5 Settlements hierarchy – maintain status quo?
Cooma-Monaro Shire has four settlement areas which contain both residential land uses accompanied by at least one commercial/retail use. These settlements are obviously Cooma (including Four Mile), Bredbo, Michelago and Nimmitabel. A further two settlements without current commercial uses but containing a cluster of residential land uses are also considered significant. These areas are Numeralla and Smiths Road.
At the time of the last Census in 2011, 74% of the Cooma-Monaro Shire population resided within the two districts (in red outline) highlighted in the map below. This area is basically the town of Cooma and associated outlying areas near the town.
74% of Cooma- Monaro Shire population
Figure 34: Map showing that the majority of the Shire population lives in and close to Cooma.
In terms of a hierarchy of settlements, Cooma clearly dominates the present situation in the Shire. However the relationships of each of the six significant settlements highlighted in this plan do not necessarily reflect a completely subservient relationship between Cooma and ‘the rest’. This is due to the influence of Canberra and its proximity, particularly to the northern parts of the Shire. So whilst the villages of Nimmitabel and Numeralla may be highly dependent on Cooma and have a strong relationship with the town, the village of Bredbo is somewhat connected and Michelago less connected still. The settlement at Smiths Road has almost no relationship with the town of Cooma.
The ‘relationship’ of one settlement to another refers to the ‘interconnectedness’ of the populations of each centre with the other. This can be expressed through employment, social ties, dependence or otherwise on services provided, use of facilities, business relationships, etc. These relationships and the hierarchy of the settlements can also be expressed visually as shown in the following diagram.
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Smiths Road
Nimmitabel Cooma Bredbo
Michelago
Numeralla
Figure 35: Diagram showing the present 2015 hierarchy of centres and their relationship
In the present circumstance shown above, Cooma is clearly the dominant settlement in the Shire and Nimmitabel and Numeralla are highly dependent upon it, but don’t relate much to each other. Bredbo and Michelago are not as connected to Cooma but still have a strong relationship, Michelago less so. Bredbo and Michelago also relate somewhat to each other. Smiths Road has no relationship to any other settlement in the Shire and only just touches Cooma because of the small connection with services provided from Cooma. It is also the smallest settlement area.
In the present circumstance Cooma is clearly the focal point of the Shire, however in the 20 year planning horizon to 2036 it must be considered whether this present hierarchy and relationship between the main settlements in the Shire should be:
(a) reinforced (b) modified with targeted alterations (c) modified with substantial alterations (d) left to ‘market forces’
Depending on the general direction that Council wants to pursue, some possible scenarios that could eventuate by 2036 are shown below:
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Smiths Road
Nimmitabel
Cooma Michelago
Numeralla
Bredbo
Figure 36: Focus on development in the northern Shire.
In this scenario the priority for development has been focussed on the northern part of the Shire. Michelago has grown substantially and is now the second biggest settlement. Bredbo and Smiths Road have also grown significantly. The relationship between Cooma and all other settlements has either been maintained or strengthened, however Cooma’s dominance as the primary settlement has been weakened.
Scenario: Focus on development in northern Shire Advantages Disadvantages Likely to be sufficient demand for development to Would require budget commitment to provide water make this scenario happen and wastewater services to Michelago and timeframe to deliver Population of the Shire as a whole will grow above Will impact significantly on existing landscape recent and projected growth rates Will strengthen relationship of the Shire to ACT Will increase traffic load on the Monaro Highway in both directions Will likely result in increased revenue for Council May impact travel times between Cooma and Canberra along Monaro Highway Will strengthen relationship between Cooma and May stagnate growth in Cooma northern part of Shire due to increased services and possible employment and social opportunities May result in increasing competition between Cooma, Bredbo and Michelago for new business
17. Discussion points:
• Is it a bad thing if Cooma’s share of the Shire population is reduced? • Do the new infrastructure costs to Council warrant the benefits of a higher Shire population?
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Smiths Road
Nimmitabel Bredbo Cooma
Michelago
Numeralla
Figure 37: Focus on development in Cooma and southern Shire
In this scenario there is a focus on development in Cooma and the southern part of the Shire. Development in Cooma is good for the growth of Numeralla and Nimmitabel due to the strong relational ties with Cooma. There is little change in the relationships with the northern Shire settlements.
Scenario: Focus on development in Cooma and southern settlements Advantages Disadvantages Directing development towards recent investments in Unlikely to be sufficient demand for development in water infrastructure in Nimmitabel Numeralla and Nimmitabel unless Cooma booms Will grow Cooma as a town and strengthen its Will increase alienation of northern Shire from bulk of dominance in region population Consolidates the bulk of the Shires population as Will require significant marketing campaign and relatively independent of ACT measures to attract new employment opportunities to increase population No large new infrastructure demands Will increase Council revenue without substantially increasing costs
18. Discussion points:
• Will the development of Pigring Creek dam near Nimmitabel help make this scenario more likely to eventuate?
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Smiths Road Nimmitabel
Cooma Michelago
Numeralla Bredbo
Figure 38: Focus on spreading population and growth evenly throughout Shire
In this scenario Cooma’s share of the Shire population is substantially reduced, however the Shire as a whole would grow and develop significantly. Smiths Road would grow and strengthen its relationship with Cooma and Michelago but this would need to be facilitated by a new road linking the southern end of Smiths Road to Michelago. All outlying towns and villages grow and develop.
Scenario: Spreading population and development evenly throughout the Shire Advantages Disadvantages Would result in a more connected, balanced Shire Cost of new infrastructure Would distribute economic benefits and services more May stagnate development and business investment in evenly Cooma All parts of the Shire grow and develop Would likely create pressure for more rural and rural residential development away from existing services Uncertain whether sufficient market demand would exist to create this scenario May spread Council’s resources too thinly across Shire Major towns and villages may compete rather than complement each other
19. Discussion points:
• Would spreading the Shire population more evenly make the Shire a better place? • Are there ways that each settlement could complement rather than compete? How would that happen?
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Smiths Road
Michelago Nimmitabel Cooma
Numeralla Bredbo
Figure 39: Focus growth and development in the heart of the Shire
In this final scenario growth and development has been focussed in the middle of the Shire in a triangular area where Cooma, Bredbo and Numeralla form each point of the triangle. Michelago, Nimmitabel and Smiths Road do not grow or change significantly. Cooma maintains its primary share of the population, but Bredbo is a much larger town than at present and there is also significant growth at Numeralla.
Scenario: Focus growth and development in the heart of the Shire Advantages Disadvantages Facilitates growth near to existing services Reticulated wastewater system likely and infrastructure required at Bredbo at significant cost Will improve the autonomy of the Shire Relies heavily on demand for development at population from the ACT Bredbo – not reflected in current market conditions Likely to reduce economic leakages to ACT Further significant development in Numeralla as more Shire residents within reach of more area may encounter environmental issues services in Shire Outlying areas particularly in northern Shire likely to feel less connected with remainder of Shire, will identify more with ACT
20. Discussion points:
• What other measures could be taken to increase the connectedness of the northern Shire with Cooma? • What can be done to improve the marketability of Bredbo as a desirable place to live? • Should Beresford Road-Cottage Hill Road-Chakola Road be improved and linked to facilitate faster more direct access between Numeralla and Bredbo?
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This chapter has highlighted the present distribution of population between the existing settlement areas in the Shire. Cooma is by far the biggest centre, with three-quarters of the Shire population residing in or around it. However, looking forward towards the 20 year planning horizon, Council must set a direction for the growth and development of the major settlement areas. This direction will then influence subsequent changes to Cooma-Monaro Local Environmental Plan 2013, Development Control Plan 2014 and future Developer Contributions Plans to accommodate the direction set by the Settlement Strategy.
Several potential options for this direction have been shown and discussed in this chapter, with their potential advantages and disadvantaged highlighted. There may be other scenario’s that are worth considering which have not been highlighted above. Whatever direction is set by Council would be expected to influence the focus and provision of Council services out to 2036. This would also be reflected in the Council’s budget priorities over this time period.
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6 Cooma – vision and issues
Cooma urban area has a population of 6301 according to the 2011 Census. NSW State population projections to 2031 (available at http://www.planning.nsw.gov.au/en/Research- and-Demography/Demography/Population-Projections ) forecast the population for the Cooma-Monaro Shire will grow by 600 people in this 20 year timeframe. Against the 2011 population level this is a growth of 5.9% over the 20 year period. If this projection was to be exactly duplicated in the Cooma urban area, then the population of Cooma in 2031 would be 6672 people. In other words, a growth of 371 people in 20 years. The forecast population growth in the Shire will feed into a requirement for 550 new dwellings (according to NSW State Population Projections), which again, if exactly duplicated in the Cooma urban area would require 328 new dwellings in this area, a growth of about 10% over the 20 year period. This is an average of 16.4 new dwellings a year.
Figure 40: 2011 raw Census statistics on Cooma urban area.
The population forecasts for the Shire over the 20 year period basically entail a static and stable population in pretty much a ‘business as usual’ scenario. But is this the best model for the town to pursue till 2036, or should a more ambitious approach to the growth of Cooma be developed? There is adequate capacity within existing zoning controls across Cooma township to accommodate the projected population and dwelling increase to 2036. However this full capacity may not be realised if the demand for the type of housing within this area does not eventuate.
The type of housing the town can provide is generally detached single dwellings on lots between about 600-1000m2 in size. However in recent years there is an increasingly significant portion of newer Cooma housing available in medium density villas and townhouses. There are very few existing residential flat buildings.
A significant and somewhat perplexing recent trend has also been in the growth of single person households in the 50s age bracket. This is shown in the graph below and may be a factor in generating demand for smaller, cheaper medium density housing. A further factor in the demand for this type of housing is the aging population of the town.
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Figure 41: Graph showing the higher proportion of smaller households in Cooma compared to Australia.
Figure 42: Graph showing the increase in 1 and 2 person households between 2006 and 2011.
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Figure 43: Graph showing the growth in middle aged lone person households in Cooma between 2006 and 2011. Middle aged is defined as 45-64 years of age.
The growth in smaller older households in Cooma urban area and the demand for the particular housing that suits this group contrasts sharply with the aspirations and stage of life needs of the in-migrants the town needs to attract in order to grow. The graphs below show that people in the 20-39 age bracket are the most likely to move. Whilst those in their early 20s are most likely to move away from the Shire, those approaching 40 are the most likely to move to the Shire. Within this latter group it is often family needs and the desire for more space and bigger, better housing that is the driving motivation behind moving house.
Such variability in the age groups which are most likely to drive housing demand in Cooma means that the best approach to future housing is likely to be one which facilitates a variety of housing choice, including a variety of lot size choice. This cannot be provided in Cooma urban area alone, but the Cooma outskirts also need to be a part of the overall housing supply for Cooma.
Figure 44: Graph showing Australia wide the age groups most likely to move.
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Figure 45: Graph prepared by the demography unit of the NSW Department of Planning and Environment showing migration flows in the south east NSW region.
Looking forward to 2036, it is considered that a prudent way to approach the development of the town of Cooma is to define an area, consisting of the urban area and the immediate hinterland of the town, and seek to accommodate all the land use and servicing needs of the town within this area. The map below shows the area which should be focussed upon in the development of a detailed land use strategy for Cooma. Such a strategy would accommodate the projected new growth of the town and surrounding release areas and provide adequate guidance for future changes to Cooma-Monaro Local Environmental Plan 2013. The purpose of its inclusion in this discussion paper is to ascertain the views of the community to this approach.
It should be noted that this proposed area includes Bunyan to the north and Dairymans Plain to the west. It extends out to Middle Flat in the east and into some land which is part of Snowy River Shire to the south. It is meant to represent the general area which is considered ‘Cooma’ in the community. It incorporates areas which are basically no more than a 10 minute drive from the CBD and whose residents would be quite intimately involved with the town and highly frequent users of its services. The precise location of the proposed boundary around this area follow existing historical locality boundaries, as these are the most convenient in terms of mapping and monitoring statistical changes.
The following page also includes a broad vision in terms of land use and new infrastructure which could be included in a detailed land use strategy for the area. This plan is indicative only and is included to generate discussion about the possibilities. Council will need to decide upon a more definitive plan as part of the Settlement Strategy.
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Figure 46: Cooma urban area (grey) and surrounding outskirts area (green). The final settlements strategy should include a detailed land use strategy for ‘Cooma’ incorporating both these areas. Beyond the green outskirts from a land use point of view the rural areas begin.
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Figure 47: Some ideas and suggestions relating to land use in and around Cooma which should be considered in the 20 year timeframe.
The following table outlines some of the advantages and disadvantages of some of the issues raised above.
Issue Positives Negatives
Increasing existing residential densities Will cater for growth in smaller Not as attractive to in-migrants with in Cooma households families Provide opportunity for renewal in built Possibly not what market expects in a environment rural town Uses existing infrastructure
Encouraging new subdivisions and Well suited to market expectations of Will require extensions to existing development in greenfield areas rural living infrastructure around town
Link Bidgee Road to Murrells Road Will cut travelling time to Canberra for Will require a sufficient amount of new residents of northern outskirts of development to raise Section 94 funds Cooma Requires acquisition of a small amount of land.
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Issue Positives Negatives
Reducing minimum lot sizes in existing Would allow for the urban area of Will increase traffic on Mittagang Road R5 zones Cooma to grow in an orderly fashion Bunyan and Dry Plains would from existing northern boundaries potentially require new water Would accommodate further growth in infrastructure areas with existing infrastructure Threatened species issues may occur (Mittagang Road). within some areas Areas at Dry Plains and Bunyan could grow if suitable water infrastructure could be provided
Promote more intensive agriculture in These areas may have potential for Water use and availability would Rose Valley and Old Mill road areas agricultural innovation particularly in require clarification and certainty horticultural uses Would require new investment to bring Smaller lots could be accommodated in to fruition these areas Good access to existing transport routes is available Opportunity to develop tourist oriented agriculture eg berry or flower picking, roadside stalls
New industrial land Would provide an alternative option for Difficult to find greenfields land that is new industry other than locating at suitable for industrial uses Polo Flat Would provide an incentive for owners at Polo Flat to upgrade their premises Would provide an opportunity for a modern industrial estate in Cooma Would allow more diverse uses at Polo Flat to cater for coastal tourist traffic
A bold vision for Cooma by 2036 would be to aim for a population of at least 9000 people and achieve it within 10 years. The diagram and graph below show where this growth could be accommodated - in part by infill in the existing urban area and part by an expansion area to the north around the town. This would be a dramatic departure from the current projected population for the Shire and would necessitate changes to minimum lot sizes, zoning and services infrastructure around Cooma within the areas shown below. It would create a demand for several hundred new dwellings and expand the business and commercial sectors in the town.
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Cooma Expansion Area
Cooma Infill Area
Figure 48: Map showing the areas that would be the focus of more intensive development in a significantly expanded Cooma. Areas not included in this plan but within the broader area identified around Cooma in Figure 47 above could also be used for more moderately intensive development.
The obvious question with ambitious plans for population growth is where will the demand come from to fuel the growth? In the case of Cooma, it is considered a mistake to think that the growth will come from any one particular major source. It is more likely to come from a combination of factors working together to produce a consistent and steady population growth. Some of these factors would include: • Reducing the numbers of young people leaving the town, largely for education reasons • Improving connectivity with Canberra and minimising travel times as much as possible (this is one reason expansion to the north of Cooma is favoured) • Re-opening of the rail line would be highly significant • Maximising and enhancing residential amenity and recreational activities/services in Cooma, along with main street improvements • Attracting a modest number of ‘tree change’ retirees • Attracting a new major employer and/or industry by marketing Cooma’s location central to the south east region (and possibly providing new greenfields industrial land); • Taking advantage of the decreasing amenity in Sydney to attract in-migrants, particularly those who the NBN network may make more mobile for work • Offering a different residential product and experience to what is currently available around Canberra, such as larger lots, lower commuting times in town, better access to recreation activities, etc • Increasing tourism to the town and region • Council consistently and deliberately articulating its vision for Cooma and making budget, policy and infrastructure decisions to accommodate it in a timely and efficient way. • Building and enhancing a strong sense of local community and identity
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Effect of Cooma growing to 9000 in 10 years over State Population projections 14,000
12,000
10,000
8,000 Total Population State Govt projections 6,000 Total Population Cooma 9000 in 10 years scenario 4,000
2,000
0 2011 2016 2021 2026 2031
Figure 49: Graph comparing the Shire population in the ‘business as usual’ scenario against the ‘grow Cooma to 9000’ scenario out to 2031. In reality the red line will not be as consistent but the graph serves to illustrate the basic difference between the two scenario’s.
21. Discussion points:
• Should the town more aggressively pursue population growth? • Should growth be in the form of increased density of development in Cooma urban area or in the release of new greenfield sites around Cooma? (ie up or out?) • Where would be a good place to locate new industrial land and/or employment generating land? • Does the proposed area for the Cooma detailed land use strategy make sense? • Are there ways agriculture could be used to promote tourism around Cooma? • What is an appropriate minimum lot size for rural residential areas?
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7 Bredbo – vision and issues
Bredbo is a small village but is located within one hours drive of central Canberra. However, it is only 20 minutes from Cooma and as such relies on Cooma for many of its services.
Some key characteristics of Bredbo from a planning point of view are shown below:
• Standard grid lot layout with the major transport route along eastern edge. Efficient and flexible layout. • Most lots in the village 1800-2000m2 • Water supply but no reticulated sewerage • 94 dwellings (2011 Census) but large number of vacant lots remain • 222 residents • Proximity to Murrumbidgee and Numeralla Rivers • Household incomes in Bredbo have risen significantly in recent years
Bredbo has the best town structure of any town or village in the Shire, have the railway and highway located on one side of the village and the residential parts mostly nestled between the transport corridor and the Murrumbidgee River. The river is a significant asset to the village and is probably not exploited as much as it could be in order to maximum the amenity of the village. The development of a river walk would be a significant amenity attractor to new residents.
The key problem with Bredbo from a land use planning point of view is its abundance of available yet under developed land. There are a significant number of vacant existing lots present within the village. In addition, there is a large amount of land that is already zoned R5 – Large Lot Residential around the village which has not been developed. The land which has been approved for development in the Silver Brumby is progressing very slowly.
Amendments to the minimum lot size in the Bredbo West area (between the village and the River) were made in Cooma-Monaro Local Environmental Plan 2013 to enable dwellings to be constructed on the existing larger lots in this area. However, this has not acted as the stimulus to further development that was envisioned when the change was made.
Bredbo has adequate water supply infrastructure to cope with a substantial increase in population, but will be constrained in this by the lack of a complimentary reticulated sewerage system. At present this has effectively placed a cap on the possible minimum lot size in Bredbo at 1800m2. To make the economics of providing a reticulated sewerage system work, Bredbo needs to experience an increased demand for development in the village. Were the rail line to re-open it may act as the necessary stimulus for an increase in demand for development. Until such time, the best thing for Bredbo is for the community and Council to work together to improve its amenity and recreational facilities. The rising income of land owners in the area is a positive sign that times are changing for Bredbo.
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Figure 50: The present minimum lot size map for Bredbo showing the village area and Bredbo West between the village and the River.
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Figure 51: The current zoning map around Bredbo showing the abundance of rural residential land available.
22. Discussion points:
• What could be done to improve the amenity and appearance of Bredbo?
• Why is there so much undeveloped available land at Bredbo?
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8 Michelago – vision and issues
Michelago is a small village but is likely to experience high demand for growth at some point in the future because of its proximity to Canberra and generally high underlying land values. It also has spectacular views of the Tinderry mountains and an open rural feel.
Michelago village is historically a product of the rail line. The village design is oriented towards the rail line and not the highway. However, its present circumstance of being nestled between the railway and highway is conducive to a linear expansion in a north and/or southerly direction. This type of expanded design of the village is not particularly attractive in the landscape and will resemble ribbon development along the Monaro Highway even if access points to the highway are limited. It may be better for the village to expand northwards on both sides of the highway and construct an underpass beneath the highway to enable local traffic to be separated completely from through traffic on the highway. Land along Michelago Creek provides a natural low point in the landscape and the obvious location for a gravity fed sewerage treatment plant, however its precise location where impacts on new residential development in the area will be minimised is somewhat elusive.
The further development of Michelago needs to be a conscious decision made by the Council and backed up by a firm commitment to provide a reticulated sewerage and water supply to the village. As such the development of Michelago specific Section 94 and Section 64 developer contribution and development servicing plans are critical to an expanded village becoming a reality.
The landscape surrounding Michelago contains a number of areas with impressive views and mediocre agricultural potential, but nevertheless relatively high residual land values. It may be appropriate then to re-consider the orientation of the land uses around Michelago away from a primarily agricultural direction. This would include consideration as to whether or not existing minimum lot sizes should be reduced and more rural lifestyle blocks encouraged. Critical to this occurring in an orderly fashion would be the preservation of the general appearance of the landscape in the area. This landscape is also known to support various threatened species which must be protected from the impacts of new development.
Michelago also has significant potential to grow if the railway line re-opened and provided a commuter service to employment lands in the ACT, including Canberra Airport. If this was to occur it would need to be co-ordinated with the construction of the water supply and sewerage infrastructure highlighted above.
Introducing a specific business zone within Michelago may also be appropriate at some point depending on the final projected size of the village. The existing village zone is very flexible and provides for a range of uses but as the village turns into a town the presence of some business uses within residential areas may in the long term be counter productive in terms of residential amenity and attracting new residents.
The following map highlights some possible options for the further development of Michelago. It is included to generate discussion about relevant issues and is indicative only.
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Figure 52: A possible vision for the future development of Michelago village. This is not a proposal, it is included to stimulate discussion of relevant issues.
23. Discussion points:
• Should Michelago be provided with a reticulated water and sewerage system? • How can local traffic in an expanded village be separated from through traffic on the Monaro Highway? • Should density in the existing village be increased? • Are the investigation areas above suitable for residential development? • How would the character of the village be retained if it expanded? • Should Michelago be expanded at all? • What competitive advantages would an expanded village have over other new land releases around Canberra? How could these advantages be maximised? • What would be an appropriate lot size for areas around Michelago village?
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9 Smiths Road – vision and issues
Smiths Road is a small community located between the ACT border and the Murrumbidgee River in the north of the Shire. It is not accessible by public road from within the Shire. All the area within Smiths Road is zoned E3 – Environmental Management under the provisions of Cooma-Monaro Local Environmental Plan 2013. The current zoning is generally in line with the previous zoning under the former Yarrowlumla Local Environmental Plan 2002.
The Smiths Road community have been one of the most active in the Shire in terms of their engagement with Council regarding a strategic direction for their area. In economic terms there is capacity for further development in the area because of relatively high underlying land values. This makes it feasible for development to be undertaken at a profit and thus more likely to happen. In addition household incomes in the area are among the highest in the Shire.
Valuer-General assessments of land values in the area can be used to approximate the average value of land in the area. Using these figures, the average value of land along the northern part of Smiths Road could be around $16-17000 per hectare. If this is the case and assuming that to be competitive in the real estate market around Canberra a maximum price of $250000 for a vacant lot could be asked, then in purely economic terms only, a minimum lot size of 15 or 16 hectares could be competitive in the market. This particular lot size, if implemented in the northern part of Smiths Road, would likely increase the population in Smiths Road from below 100 at present to around 300-400 people based on average occupancy rates in new dwellings.
Such a population residing within the area would necessitate the upgrading of Smiths Road, including sealing, throughout the area of higher density lots. Whilst this could be paid for in part through Section 94 contributions from the new development, it would require a significant apportionment of the cost to Council. There may also be further costs to Council in terms of the delivery of waste and community services were a larger population to be present. However, it may be possible for Council to utilise contractors from within the ACT to provide these services to the area, and utilise special rate variations for residents to pay for it. Such arrangements would involve negotiation of existing legislative and cross-border constraints. Whilst they warrant further investigation, satisfactory arrangements cannot be guaranteed.
Smiths Road is also within an area with significant constraints to development, such as slope and fragile soils, presence of threatened species and proximity to the Murrumbidgee River above the Googong Dam pipeline intake point. The isolation of the area is a factor in terms of bushfire access and escape. The construction of a new bridge along the road within the ACT has alleviated some of the access issues faced in times of heavy rain, but Angle Crossing remains unreliable and steep sections of Smiths Road are not traversable by some vehicles, even in dry times.
Within a 20 year planning horizon, a southern access to the Smiths Road area may warrant investigation. A link to Michelago would be desirable from a planning perspective, however the topography is very difficult and engineering works required to properly construct such a road would be costly. The construction of a water supply from the Murrumbidgee River, in the vicinity of its confluence with Michelago Creek, for an expanded Michelago village may represent the best opportunity to provide a link road to the southern extremity of Smiths Road past the ‘locked gate’. The terrain is difficult and construction is likely to be costly, and
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upgrading works elsewhere in the southern part of Smiths Road may also be required. However it may be justified in an aspirational and strategic sense by Council making a conscious decision to incorporate an expanded Smiths Road more directly within the Shire.
Under present planning controls there is little potential for further development in the area. A minimum lot size of 80 hectares for a new subdivision or dwelling house has rendered very limited opportunities for such development to occur. However whilst there continues to be a large disparity between the economics of development in the area and the existing planning controls there will continue to be agitation for further development to be permitted.
Figure 53: The current zoning map for the Smiths Road area with possible changes which would be established in the final Settlements Strategy. This does not represent a final Council position, but is included to generate discussion of relevant issues.
24. Discussion points:
• What is a sustainable population level for Smiths Road? • Is there possibility of a combined strategy for the area in conjunction with the ACT government? • Would reduction in the isolation of Smiths Road by construction of a new road linking it to Michelago in the south justify the cost? When would be the opportune time for this to happen? • What is an appropriate minimum lot size for an expanded Smiths Road? Where should the boundaries of this area be?
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10 Numeralla – vision and issues
In 2011 the locality of Numeralla had a population of 269 people and 130 dwellings. A map showing the extent of the locality is shown below.
Figure 54: Map showing the locality of Numeralla, consisting of 269 people and 130 dwellings.
Numeralla village and surrounds has a relatively small population and no specific commercial or retail uses. There is a strong close knit community present and the surrounds to the village offer some outstanding vistas and a thoroughly ‘bushy’ feel. The presence of the Numeralla River alongside the village contributes to a sense of ‘place’ and village identity. Many residents of Numeralla work in Cooma and rely on it closely for business and services. As such there is a close relationship between the two settlements, such that in a general sense what is good for Cooma would typically be good for Numeralla. The village lies on a regional road between Cooma and Braidwood.
An issue going forwards for the Numeralla area concerns how to accommodate further development without impacting upon the significant koala population in the area. A draft Koala Plan of Management has been prepared which will provide guidance on how this can be achieved.
At the current pace of development in Numeralla it is possible that existing spare capacity within the current planning controls may not be sufficiently depleted to warrant new rezonings in the area. However, it may be appropriate to re-zone land in the vicinity of Numeralla currently zoned RU1 – Primary Production but which is totally unsuitable for any form of productive agriculture. This issue is not the subject of the Settlements Strategy however and is intended to be addressed the Rural Land Use Strategy which will eventually compliment the Settlements Strategy.
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25. Discussion points:
• What is likely to be a stimulus for development in Numeralla over the next 20 years? • Given its character and environmental constraints, should Numeralla grow at all or should it be protected in its present status?
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11 Nimmitabel – vision and issues
Nimmitabel is a village in the south eastern part of the Shire with a small but well established community and a rich history. Nimmitabel is perhaps the most well endowed of all the Shire villages with historic buildings, as asset which could be exploited to attract people to the town if it further develops.
Nimmitabel is the only settlement other than Cooma with both a reticulated water supply and sewerage system. Its water supply has been hampered in recent years by low rains and hot conditions, but the construction of the Pigring Creek dam south of the town is expected to alleviate many of the water supply issues for the town.
The village and surrounding locality are shown below. In 2011 this area had a population of 326 people and a total of 190 dwellings.
Figure 55: The village of Nimmitabel and its surrounding locality.
A strategic asset of Nimmitabel is its location for convenient access to both the Bombala region and the far south coast, being accessible via the Monaro and the Snowy Mountains Highways. It is also located on the far south coast route from Canberra and Queanbeyan and as such can capitalise on passing tourist trade, particularly in the summer months.
Over the 20 year planning horizon, the location of Nimmitabel may be especially significant if the railway were to re-open to the town, but not extend to Bombala. In this instance Nimmitabel could be a good location for an intermodal freight terminal to carry south eastern produce, particularly timber and wool, to Canberra, Sydney and other parts of the east coast by rail. In this scenario it would be envisaged that the railway line between Cooma and Nimmitabel would be a dedicated freight line, but the line between Cooma and Canberra would include passenger and possibly tourist services as well. Passenger services would likely not be feasible for extension to Nimmitabel as it is beyond a reasonable commuting time to Canberra. There is only a single rail crossing of the Monaro Highway between Cooma and Nimmitabel, and no major watercourse bridges. In addition, the rail line passes close to Schmidts quarry near Nimmitabel, which may be another potential source of bulk freight for the line.
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Figure 56: This map demonstrates the strategic position of Nimmitabel for access to the far south-east region.
Although not as closely connected to Cooma as Numeralla, Nimmitabel nevertheless has a close relationship with Cooma and as was the case for Numeralla what is good for Cooma is generally good for Nimmitabel. This is because it is within an easy travel distance of Cooma and as this town develops some people employed in Cooma would be inclined to view Nimmitabel as a place which still offers a genuine rural village lifestyle but with adequate provision of basic services.
Over the 20 year planning horizon the further development of Nimmitabel lies in exploiting the assets of its location, possibly with an orientation towards a south east freight interchange centre if the railway were to re-open, but also exploiting the passing tourist trade. A key to growth will be maximising the amenity of the village, and an emphasis on the preservation of heritage buildings and a heritage theme, particularly along the main street, may be an important factor in achieving this. Nimmitabel may also benefit significantly from the introduction of the NBN, but to attract mobile workers whose jobs aren’t tied to a geographical location Nimmitabel must retain its existing services and enhance its amenity.
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Figure 57: The current zoning map for Nimmitabel with possible Settlement Strategy directions. This is not a proposal and is included for discussion purposes only.
26. Discussion points:
• What comparative advantages does Nimmitabel have compared to other settlements in the area? • How might these be exploited to maximum potential? • Should the town focus on development of a co-ordinated heritage theme over the coming 20 years? • Would Nimmitabel be suited to development of a south east freight intermodal centre?
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12 Future directions
A lot can happen in the Shire and the region over the coming 20 years. By 2036 Cooma could be a larger and more significant town in the region, offering fantastic amenity and access via rail transport to employment lands in the ACT and international tourist and freight destinations. Michelago could be a new town of a reasonable size and have its own water supply and sewerage treatment facility. Smiths Road could be a rural residential area connected directly to Michelago via road access in the south. Bredbo and Numeralla may both be realising their existing potential in terms of development, and Nimmitabel could be an attractive growing town supporting freight transfer to rail from the far south coast and Bombala region.
Some ideas presented in this paper may appear wishful or over ambitious in the present day. But the reality is nobody knows what the future holds and the potential impact of policy leadership and direction from Council could be dramatic. The power of innovation and vision should also not be under-estimated.
Please do not presume that any of the ideas and potential future directions in this paper have already had their outcome decided. They have not. This paper is a genuine attempt to consult with the community and take their ideas and thoughts into consideration as part of the formulation process for future policy. Consideration will be given to all submissions received in response to this paper in the formulation of future policy directions by Council.
The next step once the public consultation period closes will be for Council to develop a draft Settlement Strategy for the Shire. This will be a more concrete direction which will provide strategic guidance for the development of the settlement areas over the coming 20 years. This will again be an opportunity for further public comment to be received ahead of the adoption of a final Settlement Strategy for the Shire.
A discussion paper on the Rural Land Use Strategy for the Shire will also be released in due course. It is anticipated it will follow a similar process to the Settlement Strategy and once finally adopted the two Strategies will provide a comprehensive road map for the development of the Shire till 2036.
Please join us on the journey.
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