State Planning Policy state interest guidance material. DRAFT Natural hazards, risks and resilience Bushfire

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1 State Planning Policy state interest guidance material DRAFT Natural hazards, risks and resilience Bushfire October 2018

2 The State of Queensland, June Originally published by the Department of State Development, Manufacturing, Infrastructure and Planning, 1 William Street, Brisbane Qld 4000, Australia. Licence: This work is licensed under the Creative Commons CC BY 4.0 Australia licence. To view a copy of the licence, visit Enquiries about this licence or any copyright issues can be directed to the department by to info@dsdmip.qld.gov.au or in writing to PO Box 15009, City East Qld Attribution: The State of Queensland, Department of State Development, Manufacturing, Infrastructure and Planning. The Queensland Government supports and encourages the dissemination and exchange of information. However, copyright protects this publication. The State of Queensland has no objection to this material being reproduced, made available online or electronically but only if it is recognised as the owner of the copyright and this material remains unaltered. The Queensland Government is committed to providing accessible services to Queenslanders of all cultural and linguistic backgrounds. If you have difficulty understanding this publication and need a translator, please call the Translating and Interpreting Service (TIS National) on and ask them to telephone the Queensland Department of State Development, Manufacturing, Infrastructure and Planning on 13 QGOV ( ). Disclaimer: While every care has been taken in preparing this publication, the State of Queensland accepts no responsibility for decisions or actions taken as a result of any data, information, statement or advice, expressed or implied, contained within. To the best of our knowledge, the content was correct at the time of publishing. Any references to legislation are not an interpretation of the law. They are to be used as a guide only. The information in this publication is general and does not take into account individual circumstances or situations. Where appropriate, independent legal advice should be sought. An electronic copy of this report is available on the department s planning system website at

3 Contents Using the SPP state interest guidance material... 1 Part 1: Understanding the state interest... 3 Part 2: Integrating the state interest policies... 8 Part 3: Mapping Part 4: Applying assessment benchmarks Part 5: Example planning scheme provisions Part 6: Supporting information... 35

4 Using the SPP state interest guidance material The Queensland Government established the State Planning Policy (SPP) to define the matters of state interest in land-use planning and development. State interests in the SPP consist of a state interest statement, state interest policies and, where applicable, assessment benchmarks. This guidance material has been prepared primarily to support the implementation of the SPP and the interpretation of the Natural hazards, risk and resilience state interest. Although the SPP broadly applies to a range of activities undertaken by state and local governments, the guidance material is particularly focused on assisting local governments when making or amending a local planning instrument and when applying the assessment benchmarks (to the extent relevant). The SPP does not prioritise one state interest over another, providing flexibility for decision-makers to respond to specific regional and local circumstances. This allows for the state interests to be considered as an entirety rather than as individual or separate priorities. State interests are to be considered in the context of the guiding principles in the SPP which promote an outcome-focused, integrated, efficient, positive and accountable planning system. The SPP guidance material is intended to be read in conjunction with the SPP and the relevant state interest. The SPP guidance material is not statutory in its effect and does not contain any new policy. It is not mandatory for local governments to use the guidance material; it is provided to assist with the interpretation and application of the state interest policies and the aseessment benchmarks contained in the SPP. 1

5 The SPP guidance material is structured as follows: Part 1: Understanding the state interest This section briefly explains why a particular matter is a matter of state interest, describes the purpose of the relevant state interest statement and defines the core concepts associated with the state interest. Part 2: Integrating the state interest policies This section provides background and further explanation for each of the state interest policies defined in the SPP. It also provides examples and options regarding how to appropriately integrate each state interest policy into a local planning instrument. Part 3: Mapping This section identifies and explains the mapping layers contained in the SPP Interactive Mapping System (IMS) relevant to a particular state interest. It also clarifies how a local government can locally refine state mapping in certain instances and outlines where online mapping for the state interest can be accessed (if relevant). Part 4: Applying assessment benchmarks In accordance with the Planning Regulation, an assessment manager or referral agency must have regard to the SPP when assessing a development application. For some state interests, there are also specific assessment benchmarks that must be used by a local government for development assessment. This section outlines the development applications to which the assessment benchmarks apply and how a development application may demonstrate compliance with these benchmarks, to the extent that these are relevant. The assessment benchmarks contained in this section will apply to assessable development in addition to any assessment benchmarks contained in a local planning instrument, to the extent of any inconsistency. Part 5: Example planning scheme provisions This section provides example planning scheme provisions that a local government may choose to adopt, or to adapt, when making or amending a local planning instrument. It is important to note the example planning scheme provisions provided may only be in relation to a particular aspect of a state interest, rather than addressing all of the particular state interest policy requirements. Part 6: Supporting information This section provides a list of technical resources that a local government may wish to refer to when considering making or amending a planning scheme. Any queries related to the SPP guidance material or the SPP should be sent to SPP@dsdmip.qld.gov.au. 2

6 Part 1: Understanding the state interest State interest statement The risks associated with natural hazards, including the projected impacts of climate change, are avoided or mitigated to protect people and property and enhance the community s resilience to natural hazards. Background Bushfires can cause extensive social, economic and environmental damage. With the increasing occurrence of days of extreme heat, affecting the severity of bushfires, and shorter between-season periods in which hazard reduction can take place, the potential impact of bushfires is of growing concern in Queensland. While the impacts will vary across the state, there are several factors that can influence the extent or degree of impact, such as, but not necessarily limited to, the severity of the bushfire, the proximity and exposure of people and property to hazardous vegetation, and vulnerability to bushfire threat. Part 1 Understanding the state interest Land-use planning plays a role in ensuring that new development 1 and communities are not placed at undue risk by adopting hazard avoidance and/or risk mitigation strategies. For example, planning provisions can ensure there is adequate separation between bushfire hazard sources and new or intensified development. Proactive and effective planning for bushfire risk can also help improve community safety and resilience and minimise the burden on emergency management systems and processes. This document provides guidance for local governments when preparing a planning scheme to proactively respond to bushfire risk within their local government areas. It is important to note that planning approaches should be fit-for-purpose and flexible to accommodate changing circumstances. Local governments should tailor their studies, risk assessments and land-use strategies to meet their local circumstances and needs. Core concepts Acceptable risk Acceptable risk is a risk that, following an understanding of the likelihood and consequences, is sufficiently low to require no new treatments or actions to reduce risk further. Individuals and society can live with this level of risk without feeling it is necessary to further reduce the risk of a natural hazard. Guiding question Do any core concepts here need further clarification? Building envelope A building envelope is the three-dimensional extent of where a building and associated structure may be built on a site after consideration of limits such as height and setback measures. 1 Refer to Planning Act 2016 for the definition of development. 3

7 Bushfire defendable space A bushfire defendable space is a specified area of land around a development (building or structure) where vegetation is modified and maintained to reduce fuel load and mechanisms of bushfire attack such as flame and radiant heat. For example, the defendable space may include a combination of perimeter road and building setbacks. Bushfire-prone area A bushfire-prone area is an area shown on the SPP IMS that could support a significant bushfire or be subject to significant bushfire attack. The statewide mapping identifies bushfire prone areas using three key factors: 1. potential fire weather severity (which includes climate change projections) 2. landscape slope 3. potential fuel load. The statewide mapping includes the latest information on the extent of remnant and nonremnant bushfire prone vegetation, and improved estimates of potential fuel loads for different regional ecosystems. The current mapping identifies the extent of bushfire prone areas using the three categories of bushfire intensity (medium, high and very high) as well as land within a potential impact buffer of 100 metres. The current statewide mapping is available on the department s website at: Part 1 Understanding the state interest Climate change The effects of climate change need to be considered in identifying and characterising bushfire prone areas, as changing weather patterns are projected to affect the extent, frequency and intensity of future bushfire events. Rising temperatures will increase the likelihood, intensity and extent of areas affected by bushfire, extend fire seasons and decrease the opportunity for hazard reduction between fire seasons. The statewide bushfire prone area mapping has incorporated climate change factors in the statewide estimates of fire weather severity to reflect the projected climate in The Intergovernmental Panel on Climate Change (IPCC) projections (Leonard et al., 2014) have been used to create these estimates. Designated bushfire-prone area A designated bushfire-prone area is land that has been designated under a power of legislation as being subject, or likely to be subject, to bushfires (Australian Building Codes Board, 2016). In Queensland, local governments may, in a local planning instrument, designate all or part of their areas as a designated bushfire prone area in accordance with section 12 of the Building Regulation AS Construction of buildings in bushfire-prone areas applies in the designated bushfire prone areas. Fire trail A fire trail is an area suitable for access by a rural firefighting vehicle between any built infrastructure (other than underground services, a fence, road or vehicular track) and neighbouring land, a forest or hazardous vegetation. Fire weather severity Fire weather severity is equivalent to the Forest Fire Danger Index (FFDI), as defined in AS , as calibrated by the document A new methodology for statewide mapping of bushfire prone areas in Queensland (Leonard et al., 2014). It is based on a gridded prediction of the FFDI from long-term spatial weather products produced by the Australian Bureau of Meteorology. 4

8 FFDI (1 in 20 years) The 1:20 year FFDI is a measure of the severity of infrequent bushfire weather events that influence the nature of bushfire behaviour and may pose a risk to communities. The FFDI for a 1:20 year is equivalent to a five per cent annual exceedance probability (AEP), that is, there is a five per cent chance of that event occurring in any given year. The index integrates the combined effect of a range of weather variables including recent precipitation, current wind speed, relative humidity and temperature. The FFDI (1 in 20 years) index has been calculated to reflect the projected climate in Fit-for-purpose Fit-for-purpose is a flexible approach to undertaking natural hazard studies and risk assessments. A fit-for-purpose risk assessment undertaken by, or on behalf of, a local government is a methodical assessment that takes into account the specific circumstances of the local government area. While the process used should be relatively standard, the specific context of each local government area will result in unique outcomes for each risk assessment. AS/NZS ISO 31000:2009 Risk management Principles and Guidelines (ISO 31000) is the accepted best practice document for general management of risk. It can and has been adapted for bushfire risk. The tailoring of a natural hazard study or risk assessment to be fit-for-purpose must be informed by a consideration of matters including, but not limited to: the characteristics of the bushfire hazard relevant fire and fire weather history of the area the population and land uses exposed to the bushfire hazard the anticipated growth and development of the community the effects that climate change will likely have on the bushfire hazard the suitability of existing studies to informing the risks associated with the bushfire hazard. Part 1 Understanding the state interest The outputs of a fit-for-purpose risk assessment should set the basis of the policy framework for managing bushfire risk to achieve an acceptable or tolerable level of risk for personal safety in bushfire-prone areas. It should include recommendations on the following, but not necessarily limited to: expected policy outcomes any matters that must be dealt with as part of planning scheme development land use planning/development controls to avoid the risk reducing the likelihood (ignition management) reducing the consequences (hazard management) accepting the risk/residual risk (response arrangements) transferring the risk (sharing the opportunity) retaining the risk (recovery). Hazardous vegetation Vegetation that contributes to bushfire hazard. Hazard and risk difference The difference between hazard and risk is: A hazard is a source of potential harm or a situation with a potential to cause loss. Risk is the chance of something happening that will have an impact on objectives (AS/NZS ISO 31000:2009). It is commonly measured in terms of consequences and likelihood. Potential impact buffer Land at risk of significant bushfire attack from embers, flames or radiant heat within 100 metres of areas mapped as bushfire-prone areas. 5

9 Resilience Resilience is the ability to adapt to changing conditions and prepare for, withstand, and rapidly recover from disruption. Risk assessment Risk assessment is the overall process of risk identification, risk analysis and risk evaluation. The SPP requires a fit for purpose risk assessment to be undertaken, consistent with the AS/NZ ISO 31000:2009 (see Figure 1 below). Guiding question What other information would be useful to help support the requirement to undertake a fitfor-purpose risk assessment? Part 1 Understanding the state interest Figure 1: AS/NZS ISO 31000:2009 risk assessment framework A risk assessment is used to understand the likelihood and consequences of a bushfire event for existing and proposed communities, property and infrastructure to determine the level of risk. In understanding the consequences of a natural hazard event, the risk assessment should consider the exposure, vulnerability and resilience of communities and their assets to the risks associated with that natural hazard event. To determine planning considerations and possible consequences when evaluating a bushfire s interaction with a community, a risk assessment should be conducted to understand the nature and extent of risk by analysing the potential hazard and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihoods and the environment on which they depend (United Nations Office for Disaster Risk Reduction): 1. Hazard: A source of potential harm or a situation with a potential to cause loss (Australian Emergency Management Institute, 2015). 2. Exposure: The elements within a given area that have been, or could be, subject to the impact of a particular hazard. Exposure is also sometimes referred to as the elements at risk (Australian Emergency Management Institute, 2015). 6

10 3. Vulnerability: The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard (United Nations Office for Disaster Risk Reduction). Upon the completion of a risk assessment, a local government should have a clear representation of its at-risk areas, which will assist with developing risk-based plans for land use. The bushfire hazard risk assessment should inform the planning scheme settlement strategy and assist a local government to understand whether its land use planning measures are appropriate, given the level of risk posed by the bushfire hazard. Tolerable risk Tolerable risk is a risk that, following an understanding of the likelihood and consequences, is low enough to allow the exposure to the natural hazard to continue, and at the same time high enough to require new treatments or actions to reduce risk. Society can live with this level of risk but believes that as much as is reasonably practical should be done to further reduce the risk of a natural hazard. Vulnerable uses Vulnerable person accommodation or congregation of vulnerable sectors of the community such as: child care centres, community care centres, detention facilities, rooming accommodation, retirement facilities or residential care facilities, tourist parks, and community infrastructure such as hospitals, educational establishments and emergency services. Part 1 Understanding the state interest 7

11 Part 2: Integrating the state interest policies Guiding questions Are the proposed provisions useful for integrating the state interest policies? When making or amending a local planning instrument, each local government is required to consider all state interests in the SPP and appropriately integrate those applicable to their local area. How could they be improved? Appropriately integrating a state interest requires all state interest policies to be considered by a local government, but it does not necessarily mean a local government must address each and every state interest policy when making or amending a local planning instrument. For example, if a local government needs to balance competing state interests in a local planning instrument, it may not be possible to address all policies for a particular state interest. This balancing of state interests may mean the planning scheme preferences one state interest policy over another. This outcome will be considered as part of the state interest review. Ministerial approval means the approach taken by the local government in balancing the state interest polices is endorsed by the state. The guideline focusses on three key elements relevant for planning scheme preparation mapping, risk assessment, and planning scheme responses. Part 2 Integrating the state interest policies To meet the objectives of the SPP for the Natural hazards, risk and resilience state interest, a local government would have to follow the process of risk identification (policy 1) and risk assessment (policy 2) to develop fit-for-purpose measures in its planning scheme (policies 4 6). Consistent risk assessment Figure 2: Process for integration of state interest policies (Natural hazard bushfire prone areas) into local planning instruments. Resources Bushfire hazard considerations are highly technical and complex. It is important that local governments actively consider the resources indentified in Part 6 of this guidance material when considering how to appropriately integrate the state interest policies. Local 8

12 governments should pay particular attention to the Australian Standards and other technical material. For the purpose of this guidance material, Planning for Bushfire Resilient Communities, contains considerably detailed technical information that councils will find particularly useful as examples of how bushfire hazard can be identified, assessed and treated. It includes information about site assessments of bushfire hazard, including the bushfire mapping methodology, and how to complete a bushfire management plan in bushfire prone areas. State interest policy 1 Natural hazard areas are identified, including: (a) bushfire-prone areas (b) flood hazard areas (c) landslide hazard areas (d) storm tide inundation areas (e) erosion prone areas. How to appropriately integrate the policy 1.1 Identify bushfire-prone areas using: available statewide mapping (refer part 3 in this guidance material); or locally refined mapping (local governments may wish to prepare local-scale bushfire prone area mapping by: o applying the statewide mapping methodology, but using local scale inputs (e.g. vegetation, slope maps, and state wide potential severe fire weather data sets as inputs) o undertaking a detailed study based on an approved methodology. Part 2 Integrating the state interest policies For information regarding the mapping methodology for bushfire prone areas refer to A New Methodology for Statewide Mapping of Bushfire Prone Areas in Queensland which can be found in the Queensland Spatial Catalogue: State interest policy 2 A fit-for-purpose risk assessment is undertaken to identify and achieve an acceptable or tolerable level of risk for personal safety and property in natural hazard areas. The outputs of the fit-for-purpose risk assessment will provide a range of recommendations about the future management of bushfire risk. Some of these recommendations will be appropriate to inform and incorporate into the planning scheme, some dealt with through the development assessment process and others via local laws and other mechanisms outside of the planning framework. 9

13 How to appropriately integrate the policy 2.1 A fit-for-purpose risk assessment in a local government area should consider: Suitability of existing studies to inform the risks associated with bushfires. Consistency with the AS/NZ ISO 31000:2009, Risk management principles and guidelines. Extent of bushfire-prone areas and identification of the level of risk to people and property. Fire event history in the area. Current and projected population growth and land uses (e.g. types and density) exposed to bushfire risk. Location of current and proposed community infrastructure and services and determine the level of risk and potential resilience (also see policy 6). Potential social, economic and environmental impacts that would result from a bushfire event. Relationship with local and district disaster management planning, including emergency response and recovery capacities (see policy 5 for details). Community consultation to understand tolerance levels to bushfire risk and identify possible treatment options. This may be undertaken as part of a broader community engagement and consultation strategy to address the full range of bushfire risk management objectives for a local government area The outcome of the risk assessment should inform planning scheme provisons to ensure that the local community is not exposed to an unacceptable level of bushfire risk. Part 2 Integrating the state interest policies 2.3 It is advisable the bushfire risk assessment be prepared or peer reviewed by a suitably qualified and experienced person. State interest policy 3 Land in an erosion prone area is not to be used for urban purposes, unless the land is located in: (a) an urban area in a planning scheme; or (b) an urban footprint identified in a regional plan. This policy is not applicable to bushfire hazard considerations. 10

14 State interest policy 4 Development in bushfire, flood, landslide, storm tide inundation or erosion prone natural hazard areas: (a) avoids the natural hazard area; or (b) where it is not possible to avoid the natural hazard area, development mitigates the risks to people and property to an acceptable or tolerable level. How to appropriately integrate the policy 4.1 Based on the findings from the fit-for-purpose risk assessment (policy 2), consider provisions in the strategic framework to encourage a settlement pattern that reflects the risks associated with bushfire prone areas and establish principles about appropriate development that may occur in these areas. 4.2 Reflect the level of risk in zoning provisions, overlay maps, codes and categories of assessment. For example, increasing categories of assessment with the level of risk and vulnerability of the use and zoning provisions avoiding vulnerable uses where the risks are intolerable. Part 2 Integrating the state interest policies 4.3 Use the findings of the fit-for-purpose risk assessment and mapping to design assessment benchmarks that operate to place development appropriately in the context of identified bushfire prone areas to either: 1) avoid development, or 2) mitigate the risks to people and property to an acceptable or tolerable level. Examples of how this could be achieved include: limiting the establishment of vulnerable uses establishing a bushfire defendable space between development and bushfire prone areas. The bushfire defendable space may vary depending on the level of risk for each use identified in the fit-for-purpose risk assessment. For example, increasing bushfire defendable space for vulnerable uses (see Table 4), essential service uses, and hazardous chemical facility uses providing additional building-to-building separation to reduce the likelihood of adjacent buildings igniting encouraging a development density that is compatible with the level of risk promoting a built form and development pattern that reduces exposure to bushfires and facilitates connections to safe evacuation routes and can function during and after a bushfire event. 11

15 State interest policy 5 Development in natural hazard areas: (a) supports, and does not hinder disaster management capacity and capabilities (b) directly, indirectly and cumulatively avoids an increase in the exposure or severity of the natural hazard and the potential for damage on the site or to other properties (c) avoids risks to public safety and the environment from the location of the storage of hazardous materials and the release of these materials as a result of a natural hazard (d) maintains or enhances the protective function of landforms and vegetation that can mitigate risks associated with the natural hazard. How to appropriately integrate the policy 5.1 Consider provisions in the reconfiguring a lot, zone, overlay or use codes that contribute to effective and efficient emergency response capabilities. This may be achieved by considering: perimeter roads between the development and the hazardous vegetation for emergency services providing access at all times and easy access by firefighting appliance vehicles during and after a bushfire event water supply and connection requirements in both reticulated and non-reticulated areas safe evacuation routes for occupants fire trails (where necessary) for ongoing vegetation and fuel load management. Part 2 Integrating the state interest policies 5.2 Consider provisons in the reconfiguring a lot, zone, overlay or use codes to limit the creation of potential ignition sources, including electricity distribution and transmission networks which can exacerbate or increase the likelihood of ignition and bushfire attack. 5.3 Consider provisons in scheme codes that manage the risk from the manufacture or storage of hazardous chemicals. 5.4 Consider provisions in zone, overlay or use codes to site development on landforms which can limit the intensity of a bushfire. For example, bushfires travel much faster uphill than they do downhill as wind-driven flames and radiant heat can more easily ignite unburnt fuel located uphill of the fire front. 5.5 Consider provisions in the reconfiguring a lot, zone or overlay codes to ensure that development does not increase the severity or extent of bushfire prone areas or the risk to people or property on the site or to other properties. 5.6 Consider provisions that avoid or minimise opportunities for ignition of landscaping features and identify a reduced fuel area that is compatible with a bushfire defendable space between development and the hazardous vegetation. 5.7 Consider the impact of planning scheme provisions that designate areas for revegetation or rehabilitation, particularly once the vegetation reaches maturity. 12

16 State interest policy 6 Community infrastructure is located and designed to maintain the required level of functionality during and immediately after a natural hazard event. How to appropriately integrate the policy 6.1 Using the fit-for-purpose risk assessment, consider how scheme provisions operate to ensure that community infrastructure functionality including vulnerable uses such as hospitals, educational establishments and emergency services (see Table 4) is not compromised during and immediately after a bushfire event. 6.2 Consider how provisions operate to affect: the location and design of community infrastructure the function the infrastructure serves during or immediately after a bushfire event the compatability of the siting of the infrastructure with the nature and extent of the hazard whether the risks associated with the hazard can be mitigated to acceptable levels to achieve the required level of service during and immediately after an event. Part 2 Integrating the state interest policies State interest policy 7 Coastal protection work in an erosion prone area is undertaken only as a last resort where coastal erosion or inundation presents an imminent threat to public safety or existing buildings and structures, and all of the following apply: (a) The building or structure cannot reasonably be relocated or abandoned. (b) Any erosion control structure is located as far landward as practicable and on the lot containing the property to the maximum extent reasonable. (c) Any increase in coastal hazard risk for adjacent areas from the coastal protection work is mitigated. This policy is not applicable to bushfire hazard consideration. 13

17 State interest policy 8 Erosion prone areas within a coastal management district: Development does not occur unless the development cannot feasibly be located elsewhere and is: (a) coastal-dependent development; or (b) temporary, readily relocatable or able to be abandoned development; or (c) essential community infrastructure; or (d) minor development of an existing permanent building or structure that cannot be relocated or abandoned. This policy is not applicable to bushfire hazard consideration. State interest policy 9 Erosion prone areas within a coastal management district: Development permitted in policy 8 above, mitigates the risks to people and property to an acceptable or tolerable level. This policy is not applicable to bushfire hazard consideration. 14

18 Part 3: Mapping To support the SPP, wherever possible and to the extent relevant, matters of state interest are spatially represented as layers in the SPP Interactive Mapping System (IMS). The mapping is intended to help local government, the community and industry understand and interpret where and how state interest policies and assessment benchmarks included in the SPP apply. Several mapping layers contained in the SPP IMS are prepared by entities other than the Department of State Development, Manufacturing, Infrastructure and Planning and may serve an additional purpose outside the Queensland planning system. Where relevant, the SPP IMS represents the single point of truth for the spatial representation of the state interests expressed in the SPP. Part 3 Mapping Appendix 1 of the SPP identifies three categories of mapping layers provided or referred to in the SPP IMS that are intended to be used in one of the following ways: Category 1 State mapping layers that must be appropriately integrated in a local planning instrument in a way that achieves the relevant state interest policy. Category 2 State mapping layers that must be appropriately integrated, and can be locally refined by a local government in a local planning instrument, in a way that achieves the relevant state interest policy. Category 3 State mapping layers that are provided for local government information purposes only. The SPP IMS is located on the department s planning website: Any queries related to the SPP mapping should be sent to mappingenquiries@dsdmip.qld.gov.au This section provides clarity regarding the mapping layers on the SPP IMS relevant to the Natural hazards, risk and resilience state interest. Guiding questions Are the categories of bushfire intensity useful in plan making or development assessment? Would a single layer for bushfire intensity be more useful (i.e. all categories combined into one layer)? 15

19 Mapping layers Bushfire-prone area Identification of bushfire prone areas for use by local governments to Purpose inform the preparation of planning schemes or for development assessment purposes. Mapping Category 2 category Data Queensland Fire and Emergency Services custodian Head of State Planning Policy power A new methodology for state wide mapping of Bushfire Prone Areas in Queensland is available at Queensland Government Data at: Methodology mapping-methodology-for-queensland/resource/fc6ec388-d408-4c48-8d0a d8652 Part 3 Mapping 16

20 Part 4: Applying assessment benchmarks For the purposes of development assessment, the SPP applies as a matter to have regard to in accordance with the Planning Regulation The SPP also contains specific assessment benchmarks for the Natural hazards, risk and resilience state interest. The assessment benchmarks outlined in this section apply to development to the extent that this development is assessable in a planning scheme and only to the extent of any inconsistency with the SPP. This section provides guidance regarding how a development application may demonstrate compliance with these requirements. Guidance on bushfire management plans and suitably qualified persons can be found in the Planning for Bushfire Resilient Communities document. Applicable development Guiding questions Are the example provisions workable and useful for addressing bushfire risk? How could they be improved? Part 4 Applying assessment benchmarks A development application for a material change of use, reconfiguration of a lot or operational works on premises in any of the following: (1) bushfire prone areas (2) flood hazard areas (3) landslide hazard areas (4) storm tide inundation areas (5) erosion prone area. Assessment benchmark 1 Erosion prone areas within a coastal management district: Development does not occur in an erosion prone area within a coastal management district unless the development cannot feasibly be located elsewhere and is: (a) coastal-dependent development; or (b) temporary, readily relocatable or able to be abandoned development; or (c) essential community infrastructure; or (d) minor redevelopment of an existing permanent building or structure that cannot be relocated or abandoned. This assessment benchmark is not applicable to bushfire hazard considerations. 17

21 Assessment benchmark 2 Erosion prone areas within a coastal management district: Development permitted in (1) above, mitigates the risks to people and property to an acceptable or tolerable level. This assessment benchmark is not applicable to bushfire hazard considerations. Assessment benchmark 3 Bushfire, flood, landslide, storm tide inundation, and erosion prone areas outside the coastal management district: Development other than that assessed against (1) above, avoids natural hazard areas, or where it is not possible to avoid the natural hazard area, development mitigates the risks to people and property to an acceptable or tolerable level. Part 4 Applying assessment benchmarks How a development application may demonstrate compliance with the assessment benchmarks Through a site-based risk assessment, in accordance with AS/NZS 31000:2009, an application can demonstrate that the development achieves an acceptable or tolerable level of risk to people and property. To achieve this for all development in a bushfire prone area: 1. Adjacent buildings or building envelopes are separated: a) for reconfiguring a lot, by at least 12 metres b) for a material change of use, by at least eight metres or as far as practically possible. 2. A bushfire defendable space is provided between buildings or building envelopes and hazardous vegetation by a distance that achieves a radiant heat flux level at any point on the building or envelope that does not exceed 29 kw/m². The bushfire defendable space is to be contained wholly within the development site. The extent of bushfire defendable space is to be established in accordance with Detailed bushfire hazard assessment in the Planning for Bushfire Resilient Communities document. For reconfiguring a lot which results in additional lots: 1. Development minimises the length of the development perimeter exposed to, or adjoining hazardous vegetation. 2. Development establishes safe evacuation routes to achieve an acceptable or tolerable risk to people by: a) avoiding the creation of bottleneck points in the movement network within the development b) ensuring roads, internal and external, to the development are designed to have sufficient capacity for the evacuating population and minimise traffic congestion in the event of a bushfire 18

22 c) ensuring access routes do not expose occupants to bushfire hazard if routes are exposed to bushfire hazard, alternative direct and safe routes must be provided d) establishing direct access to a safe assembly/evacuation area in the event of an approaching bushfire. In addition, for development involving vulnerable, essential service and hazardous chemical facility uses in the bushfire prone area: 1. Development avoids the establishment or intensification of vulnerable, essential service and hazardous chemical facility uses in the bushfire prone area unless there is an overriding need or other exceptional circumstance. 2. Where development for vulnerable, essential service and hazardous chemical facility uses is unavoidable a bushfire defendable space is provided between buildings or building envelopes and hazardous vegetation by a distance that achieves a radiant heat flux level at any point on the building or envelope that does not exceed 10 kw/m². The bushfire defendance space is to be contained wholly within the development site. The extent of the bushfire defendable space is to be established in accordance with Detailed bushfire hazard assessment in the Planning for Bushfire Resilient Communities document. Note: An overriding need is where there is a community need for the service the development provides, and is only for an extension to an existing use, and there are no other suitable alternatives. Part 4 Applying assessment benchmarks Assessment benchmark 4 All-natural hazard areas: Development supports, and does not hinder, disaster management response or recovery capacity or capabilities. How a development application may demonstrate compliance with the assessment benchmarks Development contributes to an effective and efficient emergency response and recovery capabitities. In the first instance, this requires emergency services, hospitals, and educational establishments to avoid being located in a bushfire prone area. To ensure emergency services can respond effectively, all types of development located in a bushfire prone area: 1. Are provided with vehicular access and private driveways that allow safe evacuation of the site by occupants and maintain access by emergency services. As a guide for access design parameters refer to Table 1: Access parameters parameters. 2. Where reticulated water supply is not available, development provides a water tank that is available solely for fire-fighting purposes and can be accessed by fire-fighting appliances. A water tank is to be provided within 10 metres of each building (other than a class 10 building) which: a) is either below ground level or of non-flammable construction b) has a take-off connection at a level that allows the following dedicated, static water supply to be left available for access by fire fighters: i. 10,000 litres for residential buildings. ii. for industrial, commercial and other buildings, a volume specified in AS Water storage tanks for fire protection. 19

23 c) is protected from bushfire attack, including shielding of tanks and pumps in accordance with AS Water storage tanks for fire protection. d) allows medium rigid vehicle (15 tonne fire appliance) clear access within six metres of the tank. e) is clearly identified by directional signage at the street frontage. 3. Where development is for reconfiguring a lot which results in additional lots, access and egress routes: a) are public roads b) designed in accordance with vehicle access requirements in Queensland Fire and Emergency Services - Fire Hydrant and Vehicle Access Guidelines for residential commercial and industrial lots. Development for reconfiguring a lot which results in additional lots or a material change of use that involves a vulnerable use, essential service use or hazardous chemical facility use in a bushfire-prone area provides emergency services with the necessary operational space required in the event of an emergency. For further guidance refer to Table 1: Access parameters. Part 4 Applying assessment benchmarks 20

24 Table 1: Access parameters Private Private driveways within individual lots: driveways 1) do not exceed a length of 60 m from the street to the building 2) do not exceed a gradient of 12.5 per cent 3) have a minimum width of 3.5 m 4) accommodate turning areas 2 and vertical clearances for fire-fighting appliances in accordance with Queensland Fire and Emergency Services - Fire Hydrant and Vehicle Access Guidelines for residential, commercial and industrial lots 5) serve no more than three buildings. Public roads Development sites are separated from hazardous vegetation by a public road: 1) has a two-lane carriageway clear of hazardous vegetation 2) contains a reticulated water supply and fire hydrants that are designed and installed in accordance with Queensland Fire and Emergency Services Fire Hydrant and Vehicle Access Guidelines for residential, commercial and industrial lots, unless otherwise specified by the relevant water entity 3) is connected to public roads at both ends and at intervals of no more than 500 m 4) is designed in accordance with the geometry, turning radii and vertical clearance provisions in the Queensland Fire and Emergency Services - Fire Hydrant and Vehicle Access Guidelines for residential, commercial and industrial lots and Department of Transport and Main Roads - Road Planning Design Manual 2 nd edition 5) does not impede access for firefighting and maintenance for firefighting purposes 6) is available for fire-fighting and maintenance works, or hazard reduction activities. Fire trails Fire trails achieve the following design outcomes: 1) a width of at least 20 m including: i. a minimum trafficable (cleared and formed) width of 4 m and no less than 4.8 m vertical clearance, with 3 m each side cleared of all flammable vegetation greater than 10 cm in height ii. the balance 10 m width has managed vegetation to remove major surface hazards 2) no cut or fill embankments or retaining walls adjacent to the 4 m wide trafficable path 3) can accommodate a 10 tonne vehicle 4) turning areas and vertical clearances for fire-fighting appliances in accordance with Queensland Fire and Emergency Services Fire Hydrant and Vehicle Access Guidelines for residential, commercial and industrial lots 5) access is granted in favour of council and Queensland Fire and Emergency Services 6) allows and does not impede access for firefighting and maintenance for firefighting purposes. Part 4 Applying assessment benchmarks Note: Access to fire trails must be available for fire-fighting and maintenance works, or hazard reduction activities. Local governments should also be aware of fire brigade classifications that service areas as urban fire appliances may not be able to access fire trails. 2 Turning area requirements apply only where driveway exceeds a length of 60m 21

25 Assessment benchmark 5 All-natural hazard areas: Development directly, indirectly and cumulatively avoids an increase in the severity of the natural hazard and the potential for damage on the site or to other properties. How a development application may demonstrate compliance with the assessment benchmarks Development does not increase the severity or extent of bushfire prone areas or the risk to people or property on the site or to other properites. The purpose of this is to ensure development does not: create additional bushfire prone areas or exacerbate the impacts of a bushfire through landscape design or areas designated for revegetation or rehabilitation. increase the risk of bushfire from potential sources of ignition such as electricity distribution and transmission networks. Part 4 Applying assessment benchmarks To achieve this, all development in a bushfire prone area: 1. Where involving essential infrastructure, is designed or located to minimise the likelihood of ignition of hazardous vegetation. 2. Where designated for revegetation or rehabilitation, does not have the ability to become a bushfire prone area in the future. This is achieved by: a) dimensions and configuration of revegetation or rehabilitation areas that do not create an additional bushfire prone area in the future 3 ; or b) a landscape maintenance plan that demonstrates that revegetation and rehabilitation areas are designed and managed to achieve: i. a potential fuel load which is less than eight tonnes/hectare in aggregate; and ii. fuel structure which is discontinuous. 3. Parks, open space, landscaping and fuel sources in the bushfire prone area located between hazardous vegetation and building envelopes do not increase the potential for bushfire hazard. This can be demonstrated by providing a landscape maintenance plan which includes long term management arrangements that achieve and maintain a potential available fuel load which is less than eight tonnes/hectare in aggregate and has a fuel structure which is discontinuous. 4. Where required, parks or open space are located to act as a buffer between bushfire prone areas and development and located between buildings, building envelopes or lot boundaries adjacent to bushfire prone areas. 3 Patch and corridor filtering rules used to create the statewide bushfire-prone area mapping should be used to determine if dimensions and configuration of areas designated for revegetation and rehabilitation will not create a bushfire prone area in the future. Guidance on this can be found in Planning for Bushfire Resilient Communities. 22

26 Assessment benchmark 6 All-natural hazard areas: Risks to public safety and the environment from the location of hazardous materials and the release of these materials as a result of a natural hazard are avoided. How a development application may demonstrate compliance with the assessment benchmarks Development avoids or mitigates the risk from the manufacture or storage of hazardous materials within bushfire prone areas through: 1. Materials manufactured or stored on-site are not hazardous; or 2. Structures used for the manufacture or storage of hazardous materials are located outside of bushfire prone areas; or 3. Buildings and structures used for the manufacture or storage of hazardous materials are located outside of the bushfire defendable space, as furthest away from the bushfire prone area as practicable and are designed to prevent exposure of the hazardous materials in the event of a bushfire. Part 4 Applying assessment benchmarks Assessment benchmark 7 All-natural hazard areas: The natural processes and the protective function of landforms and vegetation that can mitigate risks associated with the natural hazard are maintained or enhanced. How a development application may demonstrate compliance with the assessment benchmarks Development is located on landforms which can limit the intensity of a bushfire. Development is not to be located upslope from hazardous vegetation, or where this cannot be avoided: development occurs where the effective slope is less than 20 degrees downslope; and development should not occur on ridgelines, saddles and crests where the slope exceeds 14 degrees. 23