Draft Employment Lands Development Plan Amendment

The City of Onkaparinga has commenced the Employment Lands Development Plan Amendment (DPA) following the Minister for Planning’s approval of our Statement of Intent (8.2Mb) (the scope of our project) on 12 April 2017.

What do we mean by Employment Lands?

Employment lands are those parts of our city where development is focused on creating places for people to work. They range from activity centres (retail), commercial buildings (offices) and home businesses, to primary production and tourism, to industry including resource recovery and extraction.

This project focuses on our traditional industrial areas located at Lonsdale, Seaford, Seaford Meadows, Old Noarlunga, Aldinga Beach, Reynella, Old Reynella, Hackham, McLaren Vale and Willunga, which make up some 950 hectares of our council area.

How is industry changing in the south?

The nature of manufacturing is changing industry across South Australia.

Within our region we’re anticipating continued growth in small-business and modified forms of manufacturing. There is also an ongoing shift towards more service sector (e.g. tax consultants, teachers, mortgage brokers) and retail jobs which will continue to support our growing population.

Small-scale manufacturing may mean businesses employing less staff, using less space and utilising new technologies (3D printers, robotics, etc.). Other ‘modified forms’ of business could include greater reliance on automated processes, remote monitoring and also emerging trends in construction such as building homes in warehousing and then installing them on site.

Why are we changing our Development Plan?

We aim to promote jobs growth by changing our Development Plan to better accommodate the kinds of development that generate jobs in the modern, quickly-changing economy. This is part of our broader economic and investment program that supports business innovation, growth and investment. 

We want to create the conditions for strong economic performance through land-use arrangements that support the growth of existing industries, changes in existing industries and the emergence of new industries.

In short we want to make our Development Plan more responsive to the new and emerging needs of businesses that employ people, and to encourage the generation of more jobs.

What changes to policy are being proposed?

We’re proposing more flexible policy for our existing Industry Zone, Light Industry Zone and Bulky Goods Zone that:

  • enables businesses to innovate and adapt to the changing nature of business
  • enables adaptable floor spaces that provide options for businesses of different sizes and needs, and for start-up businesses to transition through to large floor spaces as they grow.
  • supports existing and emerging businesses by removing those elements of the DPA that could unnecessarily block development (non-complying triggers).
  • encourages investment and improves building design and site amenity
  • increased employment opportunities along main roads and as part of co-ordinated development sites
  • maintains home business areas.

Key changes being proposed include:

  • replace the Industry Zone and Light Industry Zone with the Urban Employment Zone
  • introduce a Core Industry Area to recognise and protect existing industry
  • introduce a Main Road Commercial Policy Area 12 to provide greater land use flexibility and opportunity along arterial roads
  • introduce a Co-ordinated Development Site policy for sites over five hectares to promote business park type development opportunities
  • introduce an Interface Area at the interface with existing residential land at O’Sullivan Beach and Reynella
  • amend current zone and policy areas as follows:
    • delete the General Industry Policy Area 12, Townships Policy Area 18, Lonsdale A and B Stages Policy Area 14 and amend the Lonsdale Bulky Goods Policy Area 66
    • rename Winery Policy Area 16 to Old Reynella Policy Area 14 and revise policies
    • retain the Infrastructure Policy Area 13 at Christies Beach (SA Water) and McLaren Vale (SRWRA) and expand to include the Adelaide Desalination Plant at Lonsdale
    • retain (with modification) Home Business Policy Area 17 and Old Noarlunga Policy Area 19
  • Expand the Bulky Goods Zone at Seaford Meadows.

An outline of the above changes is provided below.

Urban Employment Zone

The purpose of this zone is to provide flexibility in the development of employment land uses, accommodating a range of uses and activities that allow land use to adapt to changing labour market requirements. They include, but are not limited to, a range of industrial and business activities, as well as offices and limited shops that primarily serve occupiers within the zone.

With a more diverse range of land uses located within the zone there is a need to locate and design development so that any external impacts between land uses are minimised. The zone includes a concept plan that identifies a core industry area. This area should primarily be developed for land uses that are ancillary and in association with industry. This ensures that core industrial areas are protected from the encroachment of more sensitive uses.

Additional policies (to the General Section) are also included to address noise, air quality and general nuisance from operating hours or pollution. The responsibility to design in a way that mitigates potentially detrimental impacts lies with all land users within the zone.

Shops such as bulky goods outlets and retail showrooms desire high levels of exposure along arterial roads and these types of non-industrial land uses, together with commercial offices, can place upward pressure on land values in zones where industrial and other employment land activities are desired. An adequate supply of industrial land needs to be maintained as a means of keeping industrial land affordable. This zone therefore enables bulky goods outlets and retail showrooms to develop only where specifically identified in the Main Road Policy Area 12 and on Co-ordinated Development Sites greater than 5 hectares in area. 

Core Industry Area

The DPA identifies land within Lonsdale, O’Sullivan Beach and Reynella as Core Industry Area (514K). These areas form a longstanding industry cluster which is recognised in the 30-Year Plan for Greater Adelaide 2017 Update (21.1Mb)

The Core Industry Area retains a focus on industry, warehousing and related activities. It is akin to the current Industry Zone albeit with vital changes such as more flexible setback, land division, land use and better design policies.

Within the Core Industry Area, we also propose two new targeted policies that respond directly to existing interface, underutilisation and innovation issues:

  • Co-ordinated Development Sites
  • Interface Area. 
Co-ordinated Development Sites

Co-ordinated Development Sites are sites (including amalgamated parcels) in excess of 5 hectares within the Core Industry Area.

It is considered that development of larger sites can be co-ordinated in order to create an attractive employment environment with possible shared parking, mix of allotment sizes and encouragement of incubator units/co-op working.

To facilitate more intensive use of these sites we propose to allow office, consulting rooms or other commercial activities to occur along with shops, cafes and child care to support the commercial uses.

This strategic option allows a more flexible approach to development and seeks to encourage more intensive forms of development on underutilised sites. It supports policies in the 30-Year Plan for Greater Adelaide 2017 Update (21.1Mb), plus recommendations in the Employment Lands Analysis 2015, where JLL advise that roadblocks for development should be reduced wherever possible.

Interface Area

We propose to introduce an Interface Area which encourages a greater mix of land use activities such as light industry, offices, showroom and shops, supported with policies to ensure good building design, noise and impact mitigation and landscaping.

Industrial type land uses are generally separated from residential land either by distance, natural features such as creeks, major roads or other zoned land (refer here for map).

However the current Industry Zone and Light Industry Zone sit adjacent residential zoned land at the following key locations:

  • O’Sullivan Beach – land adjacent block bound by Gumeracha Road (Industry Zone) with existing activities requiring EPA licences
  • Reynella – land adjacent Brodie Road and Moore Road (Industry Zone) covering the existing Boral mine located north of Moore Road.

Therefore to minimise impacts to adjacent zones or land identified for residential use, additional policy will ensure appropriate interface policy and treatment.

Main Road Policy Area 12

A Main Road Policy Area is proposed to provide greater policy flexibility for commercial land uses along key highly trafficked routes to facilitate smaller scale bulky goods, retail showrooms and service trade premises.

Main Road Policy Areas are proposed for:

  • Sherriffs Road - between Brodie Road, Lonsdale and Lonsdale Road (this is a conversion of Sherriffs Road Bulky Goods Policy Area 66 to Main Road Policy Area
  • northern and southern sides of O’Sullivan Beach Road - between Southern Expressway and Dyson Road
  • northern and southern side of Seaford Road - between Main South Road and the Seaford Railway line (excludes the Boral Concrete batching plant)
  • Main South Road - between Eric Road and Bulky Goods Zone (Bunning site).
Infrastructure Policy Areas 13

The council area contains a number of large infrastructure sites used for water, stormwater, energy generation and waste management activities. Within the Affected Area the following sites are included in the Industry Zone Infrastructure Policy Area 13:

  • SA Water treatment plant at Christies Beach
  • Southern Region Waste management and depot site at McLaren Vale.

The primary intent of the Policy Area is to protect longer term use of these lands for infrastructure of regional importance.

The 2016 Employment Lands Study reinforced the importance of these sites. Likewise the need to provide an appropriate policy framework to allow for their continued operation and evolution given zoning of adjacent or nearby land for residential uses. For the SWRWA site development is also affected by sensitive natural features and its location within the McLaren Vale Character Preservation District.

Further investigations identifies that the Adelaide Desalination Plant at Lonsdale serves a very important regional infrastructure purpose. We have recommended that the Desalination Plant is included in a revised Infrastructure Policy Area.

Old Reynella Policy Area 14

The Policy Area is wholly contained over land at Old Reynella.

The Policy Area was historically known as the Hardy’s Winery site and more recently as the headquarters and distribution centre for Accolade Wines Australia. The distribution centre closed in late 2012/early 2013. Then in October 2016, Accolade Wines sold the site to Tarac Technologies Pty Ltd. 

The existing primary objective for the Industry Zone is for accommodating a wide range of industrial, warehouse, storage and transport land uses along with service industries and commercial development which has an industrial or rural – industrial basis.

The current key policy area objective is for accommodating a major winery complex with associated land uses such as viticulture accommodation for staff and provision for tourism.

Although Accolade Wines maintain their head office activities within the policy area, wine making and storage are now obsolete and superseded by the recent closure of the distribution centre and relocation of grape crushing/wine production many years ago.

It is considered that the current industry zoning and the targeted policy area limit development options that may encourage more diverse economic use of the site, adaptive reuse of heritage and existing buildings, new or innovative forms of employment generating activity.

The site is currently underutilised and has potential for a range of other employment generating activities such as commercial, bulky goods, retail showrooms, light industry or warehousing focused to the north and east of the site along with retaining the Accolade Wines tenancy.

Retention and adaptive re-use of the existing heritage items in a revised policy area will ensure the new policies protect and promote their ongoing use while enabling a complementary mix of uses including various business opportunities, community support (e.g. childcare and education) and commercial activities.

Any alternative zoning should be explored outside the Employment Lands DPA. The benefit of this approach is that it can enable the broad improvements through a city-wide DPA without the risk of complications from site-specific sensitivities and detailed investigations.

Home Business Policy Area 17

The Home Business Policy Area includes land at Old Noarlunga and Aldinga Beach. 

The Employment Lands Study noted that “Home Industry is considered important to encourage business start-up and ease transition to the ‘next level’ such as expanding floorspace, purchasing new equipment, hiring new employee/s”.

We propose to retain the two policy areas at Old Noarlunga and Aldinga Beach except for land that is located adjacent Seaford Road and Main South Road which is intended to be altered to Main Road Policy Area. 

A comparative review of other Development Plans that incorporate a Home Industry Policy Area was undertaken. Based on the review, we propose to amend the policy area by:

  • changing name from Home Industry to Home Business to better reflect the diversity of activity that could occur
  • regularise the minimum amount of floorspace allowed for business to a maximum 100 m² (or 10% of the site) for both areas. It is currently 70 m² at Old Noarlunga and 100 m² at Aldinga Beach
  • add a principle ensuring and maintaining unrestricted access to any outbuilding(s) used for home business
  • removing restrictive hours of operation criteria
  • increasing maximum weight of a vehicle parking on site to 5 tonnes (this aligns with state government policy).
Old Noarlunga Policy Area 19

We propose to retain the Old Noarlunga Policy Area and update and revise the desired character and policies to allow for a greater range of industry, commercial, tourist or community uses to encourage investment towards total site redevelopment and rehabilitation of this site. We also propose to remove rural living as an envisaged use along the northern side of Piggott Range Road as this is not considered efficient use of the land.

Located at Piggott Range Road Old Noarlunga, this Policy Area primarily accommodates the former abattoir site.  Likely site contamination remains a matter that requires new development address.

We have also introduced into the desired character and policies that the siting and design of buildings will respond to the setting of the nearby St Phillip and St James church and ensure sightlines of this building are maintained.

Bulky Goods Zone

The Bulky Goods Zone at Seaford Meadows was inserted into the Development Plan as part of the Bulky Goods Zone DPA 2013. This DPA proposes to expand the Zone to incorporate land abutting the southern side of Railway Road. This land is currently zoned Industry and contains a mix of residential, outdoor storage, milk storage and transfer depot and small vineyard. 


Download the draft DPA

A copy of the draft Employment Lands DPA is available below.

PDF icon png Draft Employment Lands DPA (40.4Mb)

You can view the draft DPA at the City of Onkaparinga council offices and libraries, located at Noarlunga Centre, Aberfoyle Park, Aldinga Beach, Seaford, Woodcroft and Willunga.

What areas are affected by the DPA?

All properties within the Industry Zone, Light Industry Zone and Bulky Goods Zone are affected by the DPA

Use the map below to find your property.

Click here to view the map full screen

Community engagement

The community engagement period has concluded and Council is now considering the written and verbal submissions that were received. 

Public Meeting

A Public Meeting was held at our Noarlunga Office, Ramsay Place, Noarlunga Centre in conjunction with the Council’s Strategic Directions Committee meeting at 7pm on 10 October 2017. Those who made a submission had the opportunity to speak in support of their submission. The Public Meeting also provided an opportunity for any interested person to make a verbal submission or speak to the submissions of others. 

Your feedback

We will take into consideration all written and verbal submission in making any recommendations to alter the DPA policy. All submissions will be summarised and responded to in a Summary of Consultation and Proposed Amendments (SCPA) report, and where considered appropriate DPA policy may be amended to address concerns.

Council’s Strategic Directions Committee will review the SCPA report and final policy. It will then be sent to the Minister for Planning seeking authorisation of the draft DPA (amended or otherwise). The Minister has the ability to authorise the DPA, make changes to the DPA, or decline to authorise the DPA.

We will write to all people who made a submission to inform them of the Minister’s decision. 

DPA enquiries

For further information of the draft DPA, please contact:

Craig Jones, Development Policy Planner
Phone: 8384 0617
Email: crajon@onkapringa.sa.gov.au

Key documents that informed the draft DPA

To inform the draft DPA the following expert reports and study were undertaken.

PDF icon png Employment Lands Analysis (Jones Lang LaSalle 2015) (1.2Mb)
PDF icon png Employment Lands Study (Intermethod 2016) (17.3Mb)
PDF icon png Employment Lands Study Summary (Intermethod 2016) (14.3Mb)