ImplementationGuideline5

South East Queensland Regional Plan 2005–2026
Implementation Guideline No. 5
Social infrastructure planning
June 2007

Implementation Guideline No. 5—Social Infrastructure Planning
Acknowledgements
This project was initiated, funded and managed by the Office of Urban Management
(OUM), with funding support provided by the Department of Communities. Simone
Cuers, Social Planner for the Office of Urban Management, managed the Guidelines
project.
The Guidelines were prepared in 2006 by Sharyn Briggs, Dee Elliott, Vanessa
Harvey and Andrea Young. They were reviewed by Phil Heywood, Associate
Professor of Urban and Regional Planning, Queensland University of Technology.
The team thanks Phil for his valued contribution.
The assistance of the Project Steering Committee was invaluable in ensuring the
currency and relevance of the Guidelines. Their development was also informed by
the participation of Queensland Government agencies, by the local governments
listed in the appendices, and by the Local Government Association of Queensland
(LGAQ). Their time and effort assisting in the development of the Guidelines is
appreciated.
It is noted that all information included in the Guidelines was current at the time of
publication. Users of the Guidelines are encouraged to contact individual agencies to
ensure information aligns with current policy.
.
© SGS Economics and Planning Pty Ltd, Elliott Whiteing Pty Ltd, Briggs and Mortar Pty Ltd,
Andrea Young Planning Consultants (the Consultants) and the State of Queensland
(the Department of Infrastructure). Copyright protects this publication. Except for purposes
permitted by the Copyright Act 1968, no part may be reproduced by any means without the
prior written permission of the Department of Infrastructure or one of the Consultants.

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Foreword
Rapid population growth and the introduction of the South East Queensland Regional
Plan 2005–2026 alter the context for social infrastructure planning in South East
Queensland (SEQ). These Guidelines have been developed to support planning for
social infrastructure in a consistent, timely and co-ordinated manner, and in
accordance with SEQ Regional Plan policies.
New planning mechanisms—including Local Growth Management Strategies,
structure plans, master plans and State Infrastructure Agreements—will provide the
framework for the timely delivery of infrastructure to support growth. This document
provides guidance on social planning infrastructure, including how to:
• determine what social infrastructure is needed
• develop locally appropriate levels of service
• address regional planning and policy imperatives
• deliver appropriate levels of infrastructure through integrated social
infrastructure planning processes.
The document includes detailed guidance on planning considerations, including
comparative rates of provision (intended as indicative only). Whilst a comparative
rate of provision may give an indication of a facility being required, further detailed
planning is required to determine the best response to meet community needs. Such
a response may be an expansion of existing facilities in an adjacent community,
delivery through outreach services, or provision of a new facility.
Co-ordination of planning and delivery between the range of responsible agencies is
critical to timely, consistent provision of social infrastructure. These guidelines are
intended to assist in developing a better shared understanding of planning processes
and requirements.

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Table of Contents
1 Introduction 8
1.1 Need for Guidelines 8
1.2 Structure of the Guidelines 9
1.3 Social Infrastructure Defined 10
2 Regional Planning Context 11
2.1 South East Queensland’s Challenges 11
2.2 South East Queensland Regional Plan 12
2.3 Integrated Planning Act 1997 14
2.4 Regional Plan Implementation 14
2.4.1 SEQ Infrastructure Plan and Program 15
2.4.2 Local Growth Management Strategies 15
2.4.3 Structure Plans 15
2.4.4 State and Local Infrastructure Agreements 15
2.4.5 Priority Infrastructure Plans 16
2.4.6 Infrastructure Charges Schedules and Other IPA 1997 Infrastructure Measures 16
3 Social Infrastructure Planning Framework 17
3.1 Planning Process 17
3.2 Hierarchy of Provision 17
3.2.1 Neighbourhood 19
3.2.2 Local 19
3.2.3 District 20
3.2.4 Local Government Area Wide Infrastructure 20
3.2.5 Regional / Sub-Regional 21
3.3 Urban and Rural Settlement Typologies 21
3.3.1 City Centres 21
3.3.2 Activity Centres 22
3.3.3 Greenfield Communities 22
3.3.4 Infill Communities 23
3.3.5 Rural Centres 23
3.3.6 Rural Residential 24
4 Participation in Planning 25
4.1 Community Participation 25
4.2 Local Government Participation 27
4.3 State Government Participation 28
4.4 Commonwealth Government Participation 29
5 Profiling 30
5.1 Community Profiling 30
5.1.1 Undertaking Demographic Analysis 30
5.1.2 Analysing the Existing Population 30
5.1.3 Analysing Population Characteristics 32
5.1.4 Analysing Population Projections 34
5.1.5 Assessing Settlement Patterns and Catchment Areas 34

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5.2 Inventories of Existing Facilities 35
5.3 Data Access and Management 37
5.3.1 GIS Mapping 37
6 Analysis and Assessment 39
6.1 The Nature of Need 39
6.2 The 5 Steps of Needs Analysis 39
6.2.1 Step 1: Analysing Data from Profiling and Consultation 40
6.2.2 Step 2: Spatial Analysis of Need 40
6.2.3 Step 3: Developing Locally Appropriate Standards of Service 41
6.2.4 Step 4: Identifying Existing and Future Needs 46
6.2.5 Step 5: Validating and Reporting Findings 46
6.3 Guiding Principles for Determining Infrastructure Requirements 47
7 Planning Considerations 50
7.1 Considerations for Different Typologies 50
7.1.1 Social Infrastructure in City Centres/Activity Centres/TOCs 50
7.1.2 Social Infrastructure in Greenfield Areas 52
7.1.3 Social Infrastructure in Infill Areas 53
7.1.4 Social Infrastructure in Rural Centres 55
7.1.5 Social Infrastructure in Rural Residential Areas 56
7.2 Design Considerations 57
7.3 Considerations for Specific User Needs 58
7.3.1 People with Disabilities 58
7.3.2 Children 58
7.3.3 Young People 58
7.3.4 Older People 58
7.4 Detailed Considerations for Services 59
8 Implementation 60
8.1 Funding Context and the Requirement for Innovation 60
8.2 Roles and Responsibilities 62
8.3 Linking to Statutory Planning, Funding and Delivery Mechanisms 63
8.4 Links to Other Local Government Processes 66
8.5 Community Capacity Building 67
8.6 Partnerships 68
8.7 Monitoring 69
9 Resources 71
9.1 Profiling and Analysis 71
9.2 Participation 72
References 74
List of Acronyms 77
Glossary 78

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Appendix 1: Planning Considerations for Specific Facilities 82
Aged Care Service/Respite Centre 83
Ambulance 84
Art Gallery 85
Cemetery/Crematorium 86
Child Care Centres 87
Community Centres/Civic Centres 88
Community Health Precincts, Hubs, Centres and Services 89
Correctional Services 91
Courthouses 92
Exhibition/Convention Centre 93
Fire and Rescue 94
Hospital—Public 95
Kindergartens 96
Libraries 97
Museum 98
Out-of-School-Hours Care 99
Performing Arts Spaces (Performing Arts Centres/Arts Workshops) 100
Police 101
Postal Services 102
Primary Schools—Public 103
Religious Facilities 104
Secondary Schools—Public 105
TAFE (Technical and Further Education) College 106
Youth Centre/Service 108
Appendix 2: Types of Services 109
Family Support and Child Protection 109
Services for Young People 109
Services for People with Disability 109
Services for Older People 109
Community Health and Safety 109
Cultural Services 109
Appendix 3: Examples of Innovation in Community Facilities and Service
Provision 110
Appendix 4: Funding Sources 114
Local Government Options 114
Infrastructure Charges 114
Infrastructure Agreements 114
General Rates 114
Special Rates or Charges 115

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State and Commonwealth Government Funding and Grants 115
State and Commonwealth Tax Transfers 115
Grants 115
Department of Communities (State) 115
Department of Families, Community Services and Indigenous Affairs
(Commonwealth) 115
Department of Transport and Regional Services (Commonwealth) 116
Department of Communication, Information and the Arts (Commonwealth) 116
Australia Council for the Arts (Commonwealth) 117
Department of Education, Training and the Arts (State) 117
Department of Veteran Affairs (Commonwealth) 117
Department of Local Government Planning, Sport and Recreation (State) 117
Appendix 5: Notes for Implementation Section 120
Local Growth Management Strategy Requirements 120
Development Infrastructure Defined (Integrated Planning Act 1997) 120
Impact Mitigation Payments 121
Negotiated Infrastructure Agreements 123
Designating Community Infrastructure 124
Suggested Protocol for Designating Community Facilities 124
Appendix 6: State and Local Government Participation in Developing the
Guidelines 126
Project steering committee 126
Stakeholder participation 126

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List of Tables
Table 1: Community Participation in Planning 26
Table 2: Local Governments’ Roles in Social Infrastructure 27
Table 3: Keeping Local Governments’ Knowledge Current 27
Table 4: State Government Agency Roles in Social Infrastructure 28
Table 5: Sample Analysis Format for Existing Facilities 37
Table 6: A Framework for Understanding Need 39
Table 7: Comparative Rates of Provision—Hierarchical Model 43
Table 8: Integration to Develop Desired Standards of Service 45
Table 9: Template for Reporting Existing and Future Needs 46
Table 10: Template for Reporting Required Infrastructure 47
Table 11: Suggested Tasks for Monitoring Progress 69
List of Figures
Figure 1 Implementation Tools 15
Figure 2 Social Infrastructure Planning Process 18
Figure 3 Mechanisms that Assist in the Provision of Social Infrastructure 61

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1 Introduction
1.1 Need for Guidelines
The South East Queensland Regional Plan 2005–2026 and related South East
Queensland Infrastructure Plan and Program 2006-2026 (SEQIPP) has introduced a
stronger framework for co-ordinating the timely delivery of infrastructure to support
urban growth. Each local government in SEQ is now preparing a Local Growth
Management Strategy (LGMS) identifying how growth in its area will be consistent
with the SEQ Regional Plan’s policies, including social infrastructure provision.
Over the past decade, SEQ has experienced strong population growth combined with
increasing competition for funds for infrastructure. The increased demand for
resources, and in some places a lack of data or lack of co-ordination, has left
communities waiting for extended periods for some components of social
infrastructure. This situation is being progressively addressed through increased
government funding for critical social infrastructure, community capacity building, and
a range of new co-ordination and information mechanisms for planning. There is
also increasing evidence of more innovative and cost-effective models of
infrastructure delivery, including co-location, joint ventures and cross-subsidy
developments.
Whilst the SEQIPP establishes long-term commitments by the Queensland
Government for regional health and education infrastructure, other facilities and
services are planned at the local and district level through a combination of local
government, State Government and community agency processes.
The intention of these Guidelines is to provide agencies with non-statutory social
infrastructure planning guidelines including:
• the process of planning social infrastructure
• considerations for different communities
• needs analysis frameworks, including community profiling and comparative rates
of provision
• specific delivery mechanisms under the SEQ Regional Plan.
It is expected the Guidelines will assist local, State, community and private agencies
charged with responsibility for:
• social infrastructure planning and/or provision
• planning schemes and SEQ Regional Plan implementation measures
• infrastructure charges scheduling and priority infrastructure planning
• assessment of development and infrastructure impacts on social infrastructure
• master planning communities
• service delivery and facility management.
In particular, the Guidelines are intended to provide tools to support efficiency in
infrastructure planning, and the delivery of regional planning outcomes, and help to
promote a regionally consistent approach to social infrastructure planning.

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1.2 Structure of the Guidelines
Sections 1, 2 and 3 outline the planning context and a framework for social
infrastructure planning.
Section 1: Introduction introduces the Guidelines, defines ‘social infrastructure’, and
provides an outline of the guidelines.
Section 2: Regional Planning context outlines the SEQ context, including
demographic trends, challenges for social infrastructure provision, the SEQ regional
planning framework and other statutory planning instruments.
Section 3: Social Infrastructure Planning Framework explains the social infrastructure
planning process, outlines typologies of urban and rural settlement, and provides a
hierarchy of provision of social infrastructure.
Sections 4, 5 and 6 step through the process of social infrastructure planning
(outlined in Section 3).
Section 4: Participation in Planning outlines stakeholders, principles for engagement
and references to support participation in social infrastructure planning. Participation
is a key element at all stages of the planning process.
Section 5: Profiling explains the process of describing socio-demographic and socio-
economic characteristics of existing and future communities, including demographic
analysis, facility inventories and data collection.
Section 6: Analysis and Assessment outlines the process for bringing the data from
participation and profiling together to analyse community need, the use of
comparative rates of provision, and converting community needs into infrastructure
requirements.
Sections 7, 8 and 9 cover planning considerations, infrastructure provision and
implementation, and provide references to useful resources.
Section 7: Planning Considerations provides additional information on social
infrastructure planning, including provision for typologies of urban and rural
settlement, design and locational requirements, and planning considerations for user
groups and services.
Section 8: Implementation discusses the funding context, links to statutory planning
mechanisms, and other delivery mechanisms.
Section 9: Resources lists resources for people seeking more detailed assistance.
Additional information is appended, including a Glossary and List of Acronyms,
followed by:
Appendix 1: Planning Considerations for Community Facilities
Appendix 2: Types of Services
Appendix 3: Examples of Innovation in Community Facilities and Service Provision
Appendix 4: Funding Sources
Appendix 5: Notes for Implementation Section
Appendix 6: State and Local Government Participation in Developing the Guideline.

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1.3 Social Infrastructure Defined
Investment in social infrastructure is essential for the health, wellbeing and economic
prosperity of communities. It plays an important role in bringing people together,
developing social capital, maintaining quality of life, and developing the skills and
resilience essential to strong communities.
There is growing international recognition that investment in human and civic assets
is vital to economic prosperity and social wellbeing, reflected in the social inclusion
movements in the United Kingdom, Europe and Canada, and more locally, the SEQ
Regional Plan. Communities that offer opportunities for human development and the
capability to lead worthwhile lives have strong social capital, and act as magnets for
investment and growth.
For the purpose of these Guidelines, social infrastructure has been defined as
follows:
Social infrastructure refers to the community facilities, services and networks
which help individuals, families, groups and communities meet their social needs,
maximise their potential for development, and enhance community wellbeing.
They include:
• universal facilities and services such as education, training, health, open
space, recreation and sport, safety and emergency services, religious, arts
and cultural facilities, and community meeting places
• lifecycle-targeted facilities and services, such as those for children, young
people and older people
• targeted facilities and services for groups with special needs, such as families,
people with a disability and Indigenous and culturally diverse people.
Social infrastructure planning and delivery is shared between local Governments,
Queensland Government agencies, Commonwealth agencies and community
organisations, with increasing participation from other interests, including private
sector service providers and developers.
Given the intention of the Guidelines is to provide direction on social infrastructure
planning and delivery mechanisms, the content focuses on the facilities which will
house and promote the development of community services and networks.
Each State and local government agency has a set of planning processes for
services and programs. The availability of particular services and programs changes
on a frequent basis. Service and program planning is thus a complex and dynamic
system, best explored in co-operation with the relevant agencies during facility
planning. Consequently, beyond the need for a facility from which to operate,
community services (e.g. disability support and family support) and community
development services are not discussed in detail in this Guideline.
Affordable social housing is also acknowledged as a very important component of
social infrastructure, but is not included in the Guidelines as it was considered to
comprise a separate and large body of work.
Appendix 1 provides detailed planning requirements for 26 facility types. The
Guidelines focus on planning for facilities operated by the public and community
sectors, but take into account the role of private facilities in catering to community
needs.

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2 Regional Planning Context
2.1 South East Queensland’s Challenges
South East Queensland (SEQ) is currently Australia’s
fastest-growing metropolitan region, and significant
population growth in the region is forecast to continue
well into the future. In 2006, SEQ’s population was
around 2.7 million people, and was estimated to grow by
some 50,000 people per annum for at least the next 20
years. By 2026, SEQ’s population is expected to increase to 3.7 million.
High intra-regional and interstate migration is fuelling significant growth in SEQ.
Whilst a majority of growth is being realised in the Brisbane Local Government Area
(LGA), significant proportions of people are moving to the coastal areas and growth
is also occurring in the western corridor. Rising coastal land prices and the ‘sea
change’ and ‘tree change’ phenomena are placing growing pressures on towns in
coastal and metropolitan hinterlands.
Urban communities throughout SEQ are experiencing strong growth, in many cases
within master planned communities, but also in infill and greenfield situations.
Employment opportunities continue to be concentrated in Brisbane, and although a
level of self-sustainability in regional centres is encouraged, commuting to major
employment centres is expected to continue as a dominant trend.
In addition to rapid growth, patterns of social polarisation are occurring. Recent
growth trends and increased housing prices have seen a dispersal of lower income
households to urban fringe and rural hinterland areas, in search of affordable
housing. Inner city areas are becoming more characterised by medium to higher
income households with fewer children, whilst some traditional (and often socially
disadvantaged) lower income households within the inner city are being displaced.
Consistent with national trends, households in SEQ are becoming smaller, with more
dwellings housing fewer people. The population is ageing in most areas, and rapidly
in rural towns and coastal areas. The changing nature of the population is
generating demands for new, and in some cases different, types of community
facilities and services. Rapid population growth has made the appropriate provision
of social infrastructure difficult, as demands increase for a range of infrastructure to
support this growth.
The trends outlined above present a number of challenges for social infrastructure
planning in SEQ. These include:
• Trying to meet the needs of current and rapidly expanding future populations,
particularly where population growth has outstripped the capacity of existing
social infrastructure.
• Integrating land use and infrastructure planning processes to ensure
infrastructure is well located with regard to users.
• Enhancing the range of infrastructure funding options available in order to provide
a secure funding environment for delivery of timely, co-ordinated social
infrastructure.
• Providing adequate access to, and levels of, infrastructure to support the needs
of families settling on the affordable urban fringes and in hinterland towns.
• Catering to the surge in demand for infrastructure in coastal communities from
high growth and tourism;
• Responding to the loss of existing private social infrastructure, and securing land
for facilities in inner urban and urban infill areas, where land is limited and
expensive.
This section outlines the SEQ
context, including
demographic trends,
challenges for social
infrastructure provision, and
the planning framework
provided by the SEQ
Regional Plan and related
statutory planning legislation.

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• Maximising resource-use efficiencies, including integrated planning and new
models for facility provision.
• Building the capacity of communities to manage social infrastructure, particularly
where there are high levels of ageing or social disadvantage, and/or commuting
populations.
There have been a number of responses to the above challenges, with some
agencies leading the way in terms of increasing access to facilities and showing
innovation in provision. A number of new models have emerged in recent years,
particularly with regard to co-location and sharing of resources (refer below). Other
examples of innovations in social infrastructure delivery, such as Private–Public
Partnerships, use of cross subsidies, infrastructure agreements and collaboration,
and service delivery, have also emerged. Case studies from Australia and overseas
illustrating these innovations are provided in Appendix 3.
The SEQ Regional Plan provides the framework for responding to growth and
managing the development of sustainable communities. Its policy guidance and
mechanisms for delivery of social infrastructure are outlined below. These support
the use of innovative models to ensure access to social infrastructure is maximised.
2.2 South East Queensland Regional Plan
The Office of Urban Management (OUM) has released the South East Queensland
Regional Plan 2005–2026 and the related South East Queensland Infrastructure Plan
and Program 2006–2026 to manage growth in the region. The SEQ Regional Plan
provides a framework for a co-ordinated and sustainable approach to planning,
development and infrastructure provision in SEQ. A key theme in the SEQ Regional
Plan is the creation of strong communities and cohesive activity centres, with
planning and provision of social infrastructure seen as an essential element.
New delivery models initiated by State Government agencies
Multi-tenant service centres: Multi-tenant service centres aim to help service
providers improve client services through: coordinating and/or integrating service
delivery; saving costs by sharing service delivery activities, space, administrative
resources and systems; and redirecting cost and time savings into service
delivery. They have a human service delivery focus and can take a variety of
forms, including virtual and physical centres. Pilot centres have been established
in Toowoomba, Caboolture and Mackay to provide integrated service delivery.
Health precincts: The Health precinct model supports co-location with private
health providers, non-government and other community-based services (a
Queensland Health initiative). Health precincts are currently planned for Browns
Plains, Robina, the Ipswich Region, Caboolture, the Sunshine Coast and North
Lakes.
Child and family hubs: The hub model aims to provide families with better
access to child and family support services through integrated service provision.
While the service mix varies across communities according to local needs, the
provision of quality, integrated early childhood education and care services (e.g.
playgroup, child care, kindergarten, preschool, etc) remains a core element of the
hub model. Hubs may also include: family support services, parenting support,
child health services, community activities and education services. There are
currently 24 child care and family support hubs located in various communities
across Queensland. New Early Years Centres (large hubs) are planned for
Nerang, Caboolture, Browns Plains and Cairns.

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The SEQ Regional Plan is Queensland’s first statutory regional plan and has direct
relevance for plan making and development assessment activities. Powers are
provided via provisions included in the primary planning regulation act—the
Integrated Planning Act 1997 (refer chapter 2.5A, IPA 1997). The SEQ Regional
Plan also contains Regulatory Provisions to control certain types of development.
The SEQ Regional Plan covers all local government authorities (LGAs) in the region
and takes precedence over all other planning instruments.
The role of social infrastructure in contributing to the development of strong
communities is supported in the SEQ Regional Plan’s Regional Planning Vision.
Regional Planning Vision (Page 9)
‘A future for SEQ which is sustainable, affordable, prosperous and liveable; where:
• Communities are safe, healthy, accessible and inclusive
• There are diverse employment opportunities, and quality infrastructure and
services, including education and health
• Urban and rural areas are mutually supportive and collaborative in creating
wealth for the community
• Development is sustainable, well-designed and the subtropical character of the
region is recognised and reinforced
• Ecological and culturally significant landscapes are valued, celebrated and
protected
• The community has access to a range of quality open space and recreational
opportunities.
By 2026 SEQ is a region of inter-connected communities…It has a
progressive and well-informed community and enjoys international recognition
for leadership in fostering sustainable regional equality and prosperity.’
Several of the SEQ Regional Plan’s desired outcomes have relevance to social
infrastructure planning, however Desired Regional Outcome 6: Strong Communities
provides the primary policy framework:
Desired Regional Outcome 6: Strong Communities (Page 51)
Cohesive, inclusive and healthy communities with a strong sense of identity and
place, and access to a full range of facilities and services that meet diverse
community needs, to be delivered by (summarised): maximising access to
appropriate social infrastructure, planning for the social effects of growth and
change, addressing issues of disadvantage in communities, creating well-
designed, safe and healthy local environments, encouraging active community
participation, promoting healthy lifestyles and preventing crime, supporting
community engagement and capacity building, managing urban growth to enhance
a sense of community, and supporting the arts and cultural development through
the planning and provision of cultural infrastructure and spaces.
Desired Regional Outcome 8: Urban Development is also of particular relevance,
providing for a compact and sustainable urban pattern of well-planned communities,
supported by a network of accessible and convenient centres close to residential
areas, employment locations and transport, to be delivered by, among other things,
regional activities centres that focus employment and community services in well-
planned, vibrant and accessible centres.
The regional land use pattern described in the SEQ Regional Plan is also relevant to
social infrastructure planning and provision. The SEQ Regional Plan assigns all land
in SEQ to one of four land use categories: Urban Footprint; Regional Landscape and
Rural Production Area; Rural Living Area; or Investigation Area. These areas are
identified in the Regulatory Maps available on the OUM website.

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The SEQ Regional Plan supports the development of sustainable urban
environments within the Urban Footprint that provide a range of community services
and employment, recreational and housing opportunities. As such, it is the intent of
the SEQ Regional Plan for social infrastructure to be located within the Urban
Footprint.
2.3 Integrated Planning Act 1997
The Integrated Planning Act 1997 (IPA) is the primary legislation guiding planning
and development assessment in Queensland. It is a whole-of-government framework
which aims to deliver comprehensive and integrated assessment and decision-
making for the benefit of all communities within Queensland.
Infrastructure planning is an integral and fundamental component of land use
planning and the preparation of planning schemes. It is recognised that a major
influence on the efficiency of infrastructure provision is how widely urban growth is
dispersed and the sequence in which it occurs.
The IPA provides a range of powers for imposing charges, conditions and
agreements relating to development infrastructure. It also limits development
infrastructure to the networks that provide basic and essential facilities and services
to ensure the safe, healthy and efficient functioning of local communities.
Development infrastructure is defined as the land or works, or both land and works,
for urban water cycle management infrastructure, transport infrastructure, public
parks infrastructure, and local community facilities, including, for example, community
halls or centres, public recreation centres and public libraries, predominantly
servicing the local area. In addition, the IPA introduced the process of ‘designation’
for community facilities. This allows responsible authorities to identify land that is
likely to be required for community facilities. More detail on IPA planning
mechanisms is included in Section 8.
2.4 Regional Plan Implementation
To achieve the objectives set out in the SEQ Regional Plan, co-operation by all levels
of government, communities and the private sector is required. In recognition of this,
the SEQ Regional Plan is supported by a range of implementation tools including:
• SEQ Infrastructure Plan and Program
• Local Growth Management Strategies (LGMS)
• Structure Plans, potentially linked to State and Local Infrastructure Agreements.
These implementation tools are expected to inform and be incorporated into a Local
Government Authority’s planning scheme and related local and State Government
plans, strategies and policies.
The tools and their relationship to local and regional planning instruments are
outlined in Figure 1 and briefly described below. Further details regarding the
instruments are provided in Section 8.

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Figure 1 Implementation Tools
2.4.1 SEQ Infrastructure Plan and Program
The SEQ Infrastructure Plan and Program (SEQIPP) has particular importance in
delivering the objectives of the SEQ Regional Plan. The SEQIPP identifies committed
and proposed transport, water, energy, and social infrastructure of major regional
significance. The SEQIPP includes State and Commonwealth government projects
and is linked to the State Government budget process. The SEQIPP is reviewed and
updated regularly to assist in achieving the objectives set out in the SEQ Regional
Plan.
2.4.2 Local Growth Management Strategies
In addition to setting the scene for development and planning, the SEQ Regional
Plan includes total dwelling targets and infill dwelling targets for each Local
Government Area (LGA) within the region. Local Growth Management Strategies
(LGMSs) are defined in the SEQ Regional Plan as ‘a tool to assist local government
to implement the regional plan at the local level, in consultation with local
communities’, and are expected to show how LGAs will achieve the targets and other
urban development policies set out in the SEQ Regional Plan.
2.4.3 Structure Plans
The Regional Plan recognises that land suitable for urban development is a finite
resource. To ensure that greenfield and redevelopment sites are developed
efficiently and contribute to sustainable growth, the SEQ Regional Plan requires that
all major new development areas have an approved Structure Plan (SP) prior to
development. The SPs will set out the overall intent for development, determine
infrastructure demands, nominate key sites for critical infrastructure, and show how
the infrastructure will be provided and/or funded. Once gazetted, a SP will be
included in the SEQ Regional Plan and have the same effect. An ‘infrastructure
proposal’ is an ‘essential element’ of the SP, and must be consistent with the SEQ
Infrastructure Plan and Program. Agency input regarding appropriate site locations
and overall levels of provision of social infrastructure should be sought when
preparing a SP.
2.4.4 State and Local Infrastructure Agreements
Where the Queensland Government is providing major new infrastructure to lead
development in SEQ, land owners and developers of new areas who stand to benefit
significantly from the development may be required to contribute to infrastructure
provision through a State Infrastructure Agreement (SIA).
An SIA is ‘…a binding agreement between the State government and/or land owners,
developers and Local Government regarding the provision or supply of infrastructure.
It enables infrastructure to be supplied when it is required by the community.’ (Draft
SEQ Regional Plan
SEQ Infrastructure Plan & Program
For each SEQ Local Government Authority
LGMS Priority Infrastructure Plan
Structure Plans
Potential State Infrastructure Agreement
Potential Local Infrastructure Agreement
Planning Scheme
Other Local Government Plans,
Strategies and Policies

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for Consultation —SEQRP Implementation Guideline No. 4: Structure Plans).
A Local Government may also enter into a Local Infrastructure Agreement (LIA) with
land owners and/ or developers. These agreements are voluntary and relate to
master planned areas in single ownership. The LIA can nominate a range of
infrastructure, including local and State-provided works. Examples of infrastructure
agreements in SEQ include the master planned communities in Springfield (Ipswich),
North Lakes (Pine Rivers), and Kawana (Caloundra).
2.4.5 Priority Infrastructure Plans
Priority Infrastructure Plans (PIPs) are central to infrastructure planning, and must be
included in IPA-compliant planning schemes. PIPs enable local governments to
indicate areas where development is preferred and what development infrastructure
is required, based on a combination of local and State government policies,
infrastructure efficiencies and market demands.
Local governments in the region will be required to ensure their PIPs are consistent
with the SEQ Regional Plan. For the most part, development infrastructure is
provided by local government. However, the State is a fundamentally important
provider of infrastructure for urban purposes.
2.4.6 Infrastructure Charges Schedules and Other IPA 1997 Infrastructure
Measures
PIPs are generally supported by financing mechanisms called Infrastructure Charges
Schedules (ICSs) or Regulated Charges (RC). These mechanisms were introduced
with the IPA (Section 5) and allow the cost of the trunk (shared) infrastructure
identified in the plan to be recouped, based on a user-pays system. Contributions to
the cost of providing social infrastructure under the IPA need to be determined on a
catchment basis and can only recover land and limited embellishments to the land
(and not assets, e.g. libraries). Therefore, infrastructure charges will only ever
recover a portion of the costs associated with infrastructure provision. Given this
situation, other funding mechanisms need to be considered in tandem with
infrastructure charges if infrastructure is to be adequately funded.
The IPA also introduced other infrastructure measures to assist with the planning, co-
ordination and funding of infrastructure. These include: impact mitigation payments;
Local Area Plans; and designation of land for community purposes. Further
information regarding these mechanisms and how they link to social infrastructure
provision is provided in Section 8.

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3 Social Infrastructure Planning Framework
3.1 Planning Process
Planning and delivery of social infrastructure in
Queensland is shared between local governments,
State agencies, Commonwealth agencies,
community organisations and, increasingly, private
providers.
Planning needs to respond to local needs, values, and capacities, and to district and
regional dimensions, including relationships between communities and centres.
Planning also relies heavily on the knowledge and social capital within communities
and agencies, so early and ongoing engagement of stakeholders in planning is
essential.
These Guidelines provide a generic process for social infrastructure planning in
South East Queensland, including the following steps:
• community and government participation in planning
• analysis of current and expected future demographic characteristics, settlement
patterns and catchment areas, and the capacity of existing social infrastructure
• analysis of existing and likely future needs for social infrastructure
• identification of the type, location and standard of facility and service provision
required
• linking implementation strategies to other planning mechanisms and resourcing
arrangements.
New communities will require comprehensive community plans, including social
infrastructure strategies, to ensure their long-term sustainability. This will occur as
part of master planning and structure planning exercises, but should also be
considered, at an appropriate scale, for neighbourhoods and communities which do
not warrant comprehensive master planning.
Existing communities, and particularly those that are growing or changing rapidly,
may require planning to ‘overhaul’ existing social infrastructure, respond to existing
deficits, and address emerging needs. This is particularly important for communities
adjoining new development areas. Social infrastructure planning may also be
conducted as part of social impact assessment, or in renewal planning for
communities undergoing changes as a result of major projects or changes to
economic policies.
Care should also be taken to address questions of intergenerational equity, to ensure
that future communities’ access to social infrastructure is not compromised by current
planning. This may require identifying communities’ longer term visions, aspirations
and needs, in concert with analysis of population projections, planned future
provision, innovative delivery models, and funding and staging arrangements.
Figure 2 (below) depicts the recommended process for social infrastructure planning.
Key steps are detailed in Sections 4, 5 and 6; additional planning considerations are
outlined in Section 7; and implementation mechanisms are outlined in Section 8.
3.2 Hierarchy of Provision
Community facilities and services generally operate within a hierarchy of provision,
with different scales of infrastructure servicing varying sized catchments. For
example, primary schools, child care centres and community halls generally service
local catchments; secondary schools and community heath centres generally service
district catchments; and hospitals, universities and correctional centres service sub-
regional or regional catchments.
This section outlines the process
for social infrastructure planning,
a hierarchy of provision of social
infrastructure, and typologies of
urban settlement.

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Catchments refer to both geographical areas and the size of the population serviced.
They are determined by geography (including topography, physical barriers and
distance between homes and social infrastructure), population densities,
relationships between centres (e.g. transport accessibility) and the capacity of
existing social infrastructure. It is noted that the boundaries of regions and
catchments are often difficult to define, and in some cases flexibility will need to be
practiced.
Figure 2 Social Infrastructure Planning Process
Profiling
• Identify existing and projected demographic
characteristics
• Assess settlement patterns and catchment areas
• Describe and quantify existing social
infrastructure
• Analyse existing information on community need
Provision and Implementation
• Identify roles and responsibilities
• Develop strategies and action plans
• Establish links to statutory planning and other
delivery mechanisms
• Funding options and mechanisms
• Establish monitoring framework to ensure
responsiveness to changing needs
Analysis and Assessment
• Collate and analyse data from profiling
(community profile and facility inventory) and
consultation
• Spatial analysis of provision, settlement
patterns and catchment areas
• Analyse against comparative rates of provision
and develop locally applicable desired standards
of service
• Identify gaps in existing supply and assess
future needs
• Validate findings through consultation
Participation
• Information
collection
• Identify local
values and
priorities
• Identification of
expressed needs
• Input to
assessment of
type, priorities,
and scale
infrastructure
required
• Review findings
and provide input
to strategies
• Provide input on
appropriate local
responses
• Contribute to
monitoring

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Referring to a hierarchy of provision helps decision-making about the types of social
infrastructure required, and the standard of service required for a particular
catchment. In SEQ, the hierarchy outlined below is usually relevant, with some
exceptions for inner Brisbane, which also accommodates infrastructure with State-
wide, national and international catchments.
3.2.1 Neighbourhood
A neighbourhood is a collection of homes defined by boundaries such as major roads
and water courses, by form of development in relation to adjacent areas, and by
relationship to neighbourhood facilities. For the purposes of this Guideline, a
neighbourhood of 1000 homes (2,500–3,000 people) has been considered. A
neighbourhood should also be a walkable catchment to its facilities as outlined
below.
Facilities at neighbourhood level are generally confined to parks, bus stops and
corner stores, with support from local governments for organised community action
(such as rural fire brigades and environmental restoration). Neighbourhoods in
longer-established areas often have access to churches or halls which support
neighbourhood development. Neighbourhood houses may be established in new
areas and provide initial access to community participation and services in some
suburban and rural areas.
Social support, recreational activities and community participation develop locally
through the efforts of residents. This includes informal care for neighbourhood
children, older people and people with a disability, social activities, and
neighbourhood action to improve environmental features. It is therefore important
that a neighbourhood has some form of community space, such as a hall or local
park, as a focus for activity, and other practical and financial support for their
endeavours. It is also important to ensure that each neighbourhood has safe,
walkable connections to public transport stops and local facilities.
3.2.2 Local
Local social infrastructure is provided to meet universal health, learning and support
needs, and foster participation and social capital. The catchment for local social
infrastructure is generally in the order of 5,000–10,000 people and within a 5–10km
radius, although it can range up to 20,000 people in some circumstances (e.g. rural
centres). Local facilities typically include a primary school, a hall or neighbourhood
centre, a sport or recreation reserve, an access point for family health, income
support and home care services, a child care centre and/or kindergarten, and links to
district and regional facilities. With the exception of State-provided facilities, local
social infrastructure is usually planned in partnership between community
organisations and local governments (and with developers in the case of major
development areas) and funded through a combination of funds and in-kind support
from stakeholders.
Local facilities provide a base for citizenship and the development of social capital—
primary schools, for example, are integral to community participation, voluntary work
and social networks. They also provide links to the wider network of social
infrastructure. Planning for new local areas needs to include a facility which will act
as a catalyst for developing social capital. Depending on the scale of development,
this may range from provision of a park with club house facilities, to the conversion of
a sales office to a neighbourhood house, to construction of a small multi-purpose
centre. Such centres can provide access to social infrastructure such as information
and services through community networks and computer access. It is widely
considered that a place for the community to meet should ideally be available as
soon as the first residents move into an area. Communications infrastructure is
increasingly important to learning, service access and employment, and should be
considered as part of local social infrastructure planning.

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3.2.3 District
The catchment of district-level social infrastructure generally ranges from 20,000–
30,000 people, with a radius of 10–50km, and often encompasses several local
centres. In some cases, larger districts of up to 50,000 people can be identified,
depending on urban form. The scale of facilities is larger to accommodate a larger
population and geographical area, and higher-order services. Areas designated in
the SEQ Regional Plan as major activity centres will increasingly assume a district
provision role.
At district level, social infrastructure is expected to address the range of universal
needs, support people’s lifecycle needs (from maternal health to comprehensive in-
home services for older people) and address issues of disadvantage. Planning at
district level therefore needs to consider a diverse range of community needs—
health, education, training, support, employment assistance, emergency services,
participation and service delivery requirements.
District facilities often resource local social infrastructure (e.g. youth and community
centres may offer outreach services, and Home and Community Care service staff
travel extensively). The provision of hubs is appropriate at district level to support
local health, learning, and support networks. More specialist or advanced needs are
referred to regional or Local Government Area-wide facilities. It is never possible to
provide for all needs at the district level, and the district/sub-regional pattern of
provision is therefore an important determinant of the range of infrastructure required
at district level.
District facilities are usually planned in partnership between local governments,
community organisations and State Government agencies. With increasing
participation by developers in addressing regional policies, partnerships with the
private sector will become increasingly effective in delivering social infrastructure.
Local variations in district catchments
Catchments for district centres are particularly influenced by factors such as
distance between centres, specialities offered, and population density. Centres
outside metropolitan areas service districts and regions with larger geographical
areas. For example, Robina as a district centre may have a catchment of perhaps
15km, whilst Browns Plains may service people up to 25km away, and
Maroochydore’s catchment may extend up to 50km.
District catchments may align with Local Government Areas; however local
government boundaries are often poor predictors of social infrastructure
catchments, particularly given gaps in services, and inequities in provision levels
between geographical areas. District and regional catchments are also influenced
by the distribution of the community of interest, as people will travel further to
access specialist services (e.g. culturally appropriate education, or support for
people with dementia). These factors are important in identifying the location and
scale of district facilities.
3.2.4 Local Government Area Wide Infrastructure
Local Government Areas (LGAs) in SEQ have populations ranging from
approximately 3,500 people (Kilcoy) to more than 950,000 people (Brisbane). On the
Gold Coast, one local government services a population of almost 500,000 people,
whilst on the Sunshine Coast, three local governments service a total population of
less than 300,000 people. The number of activity centres and the size of their
catchments is therefore vastly different. Relationships between LGAs are also
variable. For example, inter-council co-operation in relation to regional infrastructure
is critical on the Sunshine Coast, whilst relationships between the adjoining Esk and
Brisbane LGAs are less relevant to social infrastructure planning.

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It is therefore not practical to provide LGA-wide ‘rules’ appropriate to all shires and
cities. There are, however, a number of ‘essential’ types of social infrastructure for
each LGA. These include a civic/community meeting place, places for cultural
expression, centres servicing the health, wellbeing and inclusion of all residents,
major event and disaster recovery capabilities, and leadership and advocacy for local
and district infrastructure.
3.2.5 Regional / Sub-Regional
The SEQ Regional Plan designates four sub-regions—Northern (with an area of
6,583km2
and more than 600,000 people), Western (with an area of 9,456km2
and a
population of almost 300,000), Southern (with an area of 5,049km2
and around
850,000 people), and Brisbane (with an area of 1,237km2
and almost one million
people). The catchments served by regional and sub-regional facilities may therefore
range up to 200km, servicing from 300,000 to one million people and—in the case of
major hospitals and universities—more.
Social infrastructure at the regional level meets most health and community support
needs, offers the full range of education, training and employment avenues, fosters
community participation and cultural expression, and offers a high level of expertise
in supporting quality of life. This includes health infrastructure such as hospitals,
community health services and specialist health services such as mental, paediatric
and geriatric health; education facilities such as universities and TAFE institutes with
satellite campuses; the full range of government services (local, State and
Commonwealth); correctional centres; cultural infrastructure such as entertainment
centres; and major sporting facilities.
The catchment for sub-regional and regional infrastructure may extend more than
200km, particularly in the case of services such as medical and health specialities,
tertiary education and major cultural and sporting facilities. It may also provide
services (including full-cost services) to overseas residents, particularly those from
the Asia-Pacific region. Such infrastructure is generally planned and funded at State
or Commonwealth level, usually with local government participation. As such,
regional and sub-regional social infrastructure has an important role in resourcing
and supporting facilities and services at district and local level.
Whilst the range and scale of infrastructure required at sub-regional level is similar
across the four sub-regions, a greater number of sub-regional-type facilities are
required in more populous areas. Opportunities for co-location of regional
infrastructure are important to community access, efficient land use and efficient use
of staff expertise. Comprehensive public transport access to regional social
infrastructure is also essential.
3.3 Urban and Rural Settlement Typologies
A typology is a classification according to general type. The typologies provided here
describe the common characteristics of SEQ communities and indicate
considerations for social infrastructure planning in response to typical community
needs. Detailed guidance on the range of social infrastructure required for each
typology is provided in Section 7.
3.3.1 City Centres
City centres have traditionally accommodated major employment uses, entertainment
precincts, civic and cultural infrastructure and recreational facilities at the highest
level, generally for city and regional catchments (and in Brisbane’s case, for broader
catchments). These regional-scale facilities typically double as local facilities. Such
facilities are generally provided through redevelopment of existing public
infrastructure (e.g. Roma Street Parklands, Suncorp Stadium and the new Gallery of
Modern Art) and are planned by the State Government.

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The resurgence in inner-city living at higher densities has revived the need for access
to local infrastructure in city areas, such as open space, child care, and care for
ageing people. Most housing within city centres is medium- to high-density. Such
areas may include ‘vertical communities’, ranging from hundreds of people (in a
single apartment complex) to several thousand people (in a high-rise
neighbourhood). Household sizes are at the lower end of the scale (currently an
average of 1.2–1.7 people per household in inner-city Brisbane), with couple
households in the majority, and the proportion of sole person households likely to
exceed 30 per cent. Household incomes are generally slightly higher than the SEQ
average, reflecting the generally higher level of income required to maintain housing
payments in the inner city.
Private open space is limited, and some multi-unit dwellings provide shared private
space, which can include barbecue areas, pools and gyms. Local retail spaces such
as 24-hour convenience stores, cafes and bars located on the ground floor of
apartment buildings point to a potential future outcome for social infrastructure—
provided as part of a building, at a scale which addresses the neighbourhood. This
could include a community meeting room, public internet access or recreational
facilities which encourage healthy lifestyles provided as part of the housing complex.
At a larger scale—and depending on the capacity of infrastructure servicing adjacent
suburban communities—social infrastructure such as services for ageing people,
child care and community participation options will also need consideration. Older
people living alone can feel very isolated: facilities or opportunities for people to form
social networks are essential. Facilities and services will be required within walkable
distance of multi-unit dwellings or public transport.
3.3.2 Activity Centres
The SEQ Regional Plan encourages higher density residential development to be
focussed within activity centres and around public transport nodes and corridors.
Activity centres are mixed-use residential and employment areas designed to
maximise land-use efficiency and convenience by providing high levels of access to
facilities and services, including public transport.
Activity centres will contain more medium- to high-density housing than other
communities. The number of dwellings per hectare in activity centres will range from
about 30–120 or more, whilst 30–80 dwellings per hectare are required in transit
oriented communities. They will contain a full range of household types, from sole
person (likely to be 30–40 per cent of households) to couple households (likely to
form the largest group), adult-with-children households, and group households
(including students and extended families). Household sizes are likely to be less
than two people per household.
Private open space will be provided at a rate proportional to the total gross floor area
of buildings—according to local government planning requirements. The number of
employment, education and housing options will be greater, and so there may be
more cultural and socio-economic diversity in activity centres. As such, household
incomes will be vary. Access to social infrastructure will be supported by the close
proximity of public transport routes and a greater range of services within commuting
distance. Housing prices are likely to be relatively high due to the level of amenity,
which may lead to housing stress.
3.3.3 Greenfield Communities
‘Greenfield’ refers to areas of undeveloped land in the Urban Footprint suitable for
urban development, typically in urban fringe locations. Greenfield sites with
contiguous areas of over 100 hectares are referred to in the SEQ Regional Plan as
‘major new urban areas’ or ‘major development areas’ (subsequent Office of Urban
Management policy). These can be in single or multiple ownership.

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Greenfield areas typically attract a high proportion of families, and are more likely to
attract first home owners due to the relative affordability and the appeal of more
generous private space, parks and local services such as child care. Whereas
traditional greenfield developments were typically ‘mono-cultural’ housing estates,
greenfield developments today provide a range of housing to meet diverse housing
needs. In addition, the large greenfield development sites, or major development
areas, are required to provide higher-density and mixed-use development around
activity centres and public transport nodes and corridors. Low to medium housing
densities are common (currently averaging 8–10 dwellings per hectare)—though this
will change—and average household sizes range from 2–2.7 people. Cultural and
economic diversity is partly determined by availability of employment and service
options, but is increasing as new settlers from interstate and overseas establish
families and seek affordable housing options.
Access to social infrastructure is dependent on existing facilities and services, in
combination with infrastructure provided as part of development agreements, and on
access to public transport. Integration and co-location of facilities and services is
particularly important for greenfield communities as residents will usually need to
travel to access district-level services. The development of greenfield communities
provides an opportunity to get the planning right to facilitate the efficient delivery of
services.
3.3.4 Infill Communities
Infill refers to new development in established urban areas where the site or area is
either vacant or has previously been used for another purpose (a brownfield site) and
will be redeveloped. Infill also refers to the intensification of existing uses (e.g. an
increase in the number of dwellings per hectare). Infill may range from one additional
lot to a major mixed-use development. Consequently, the population may increase by
as many as hundreds of new households. Around 400,000 people will be housed in
infill development across SEQ over the next 20 years. It is critical to carefully weave
infill into the existing urban fabric, to minimise disruption to existing communities.
Typically, new infill development will comprise medium- to very-high-density
dwellings, with household sizes likely to range from 1–2 people per household.
Densities will be highly variable, based on the characteristics of particular sites.
Depending on the availability of smaller homes (attached or small lot), couples, small
families, ‘empty nesters’ and older people are likely to be attracted to infill areas.
Private open space is likely to be limited to smaller yards, decks or balconies, and
the provision of parks is therefore an important consideration. Employment options
are likely to be more varied than in greenfield areas, attracting more socio-economic
diversity. Incomes are likely to be average, accounting for a diverse range of
residents, but inner-city sites are likely to also attract higher income groups.
The need for social infrastructure in infill areas is dependent on the capacity of
existing infrastructure compared with the number of new residents and their particular
demands. Many existing facilities and services are already straining to cope with
growing demand, and a critical examination of the match between existing
infrastructure and new and emerging needs will be required. The characteristics of
‘old’ and ‘new’ residents also need to be examined to ensure an appropriate balance
of provision. Contributions to community infrastructure will need to be determined on
the basis of the additional demand and the different needs of residents of infill
developments.
3.3.5 Rural Centres
Generally, the average unemployment rate in rural centres is lower than the regional
average, however a lack of employment diversity may narrow the socio-economic
base and SEQ’s ongoing drought is depressing household incomes in many areas.
In rural centres, there are fewer people born overseas than there are in coastal areas

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but on average they have more than twice the proportion of Indigenous residents
compared with Brisbane.
In most rural centres, population growth is slower than it is in coastal areas. Rural
centres are likely to include higher percentages of couple and family households than
metropolitan areas, but they have older median populations due to the movement of
young people to coastal centres. The majority of housing is detached dwellings and
occupancy ranges around 2.5 people per household. Housing densities are
generally low, with lot sizes typically ranging from 600–2,000m2
. Private open space
is found at high levels but parks are important gathering places.
Social capital is likely to be healthier in most rural centres than in a city, due to the
traditional need to work together, the smaller scale of communities and their
relationships to local centres. However, centres with high levels of commuting can
have weaker social capital. Social infrastructure planning needs to ensure that
communities are assisted to respond to changing rural industries and economic and
social conditions (such as localised population growth due to the ‘sea change’ and
‘tree change’ phenomena). Because rural centres provide for extensive rural
catchments, public transport between rural and sub-regional centres is essential to
allow residents to access an adequate range of social infrastructure.
3.3.6 Rural Residential
Rural residential development is large-lot residential subdivision in a rural, semi-rural
or conservation setting. It is typically located on the fringes of urban and rural centres
at very low densities. Lot sizes are generally greater than 2,000m2
and attached
housing is rare. Private open space is abundant. Populations are smaller and
dispersed, but household occupancies are higher than in city and suburban areas, at
around 2.9–3.1 people per household. Incomes, housing stress and employment
characteristics are highly variable, depending on communities’ proximity to major
centres.
Services are provided at the most basic level (e.g. a post box and possibly a
neighbourhood house). Residents are generally expected to access social
infrastructure in urban and regional centres. Public transport links to rural residential
areas are often expensive to maintain but are sometimes considered if bus stops can
be provided for a walkable catchment.
The SEQ Regional Plan’s policy is to contain and limit areas allocated for rural
residential development. This will ensure efficient provision of services and
infrastructure (rural residential development is generally expensive and inefficient to
service) and limit further land fragmentation. Further rural residential development in
SEQ is restricted to the Rural Living Area and Urban Footprint regional land use
categories.

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4 Participation in Planning
Participation in planning refers to
opportunities for stakeholders to contribute to
and influence planning processes and
outcomes.
Participation helps planners to draw on local
knowledge and reflect local values. It assists
in developing partnerships and alliances for
implementation, and more appropriate
models of delivery, such as co-location and
integrated service delivery.
The SEQ Regional Plan recognises that community engagement is a powerful
mechanism for identifying new approaches and solutions to managing growth and
development. The SEQ Regional Plan sets out policies for community engagement
and capacity building (Desired Regional Outcome 6), including:
• improving planning and delivery of social infrastructure by developing
collaborative working relationships
• supporting community engagement in planning processes
• enabling local communities to identify, articulate and enhance their sense of
place and wellbeing
• establishing partnerships to enhance community engagement and capacity
building
• targeting community capacity building in areas undergoing significant change.
Stakeholders include community members and organisations, local governments,
State agencies and, in some circumstances, Commonwealth agencies. Participation
by land developers and private infrastructure providers is also sometimes required.
The Queensland Government has adopted the Organisation for Economic Co-
operation and Development’s (www.oecd.org) engagement model:
Information « » Consultation « » Active participation
This model acknowledges that information, consultation and active participation are
part of a community engagement continuum, whereby the levels of engagement and
influence progressively increase. Participation may range from comments on
information provided, to one-off input to planning, to ongoing involvement in initiatives
such as community planning or facility development. It is important to carefully
specify the community’s role in planning, to ensure expectations are clear, decision-
making is accountable, and community members do not feel excluded from the
development of social infrastructure.
There are many good resources that provide guidance on participation processes
and practices (see Section 9). The following sections provide specific guidance on
participation in social infrastructure planning.
4.1 Community Participation
Planning processes that should consider community participation include the
development of structure plans, master plans, facility feasibility studies, and social
infrastructure strategies. Key stakeholders include community organisations
(particularly those delivering services and managing facilities), interagency networks
(such as child care, aged care and youth service providers’ networks), and
community members.
This section outlines considerations for
participation in social infrastructure
planning, involving the range of
stakeholders necessary for integrated
planning. Care should be taken to ensure
all sectors of the community have
opportunities to be involved in planning,
and that issues of intergenerational equity
are taken into consideration when
determining infrastructure needs.

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Participation should be preceded and accompanied by information provision.
Information should be timely in advising people of participation events and in allowing
community members to consider planning issues, and should recognise community
processes (e.g. meeting cycles and local economic seasons). Depending on the
scale of the planning exercise, methods of piquing community interest and building
awareness include:
• newsletters and feedback forms
• media releases, advertisements and articles
• community events and festivals
• briefings to community networks
• online information and networking (e.g. websites and billboards).
The table below outlines potential inputs to planning for community members and
organisations, and examples of methods which may facilitate each input.
Table 1: Community Participation in Planning
Planning step Inputs to planning Example methods
Profiling • Identifying capacity of social
infrastructure
• Identifying local values and priorities
• Commenting on the adequacy of
existing/ proposed models of
infrastructure provision
• Surveys
• Interviews
• Focus groups
• Websites
Analysis and
assessment
• Input to assessment of type and
scale of infrastructure required
• Advocating priorities for local and
regional social infrastructure
• Defining problems and identifying
solutions
• Reviewing findings and providing
input to strategies
• Workshops
• Phone-in and email
comment
• Interagency forums
• Think tanks
• Working groups
• Action research
Provision and
implementation
• Contributing to the development of
locally and regionally appropriate
solutions
• Identifying opportunities for
integrating new facilities with
existing adjoining uses
• Identifying opportunities/interest in
joint development, design and use
of new facilities, such as community
centres
• Evaluating and tracking the
effectiveness of local social
infrastructure in supporting
community wellbeing
• Design workshops
• Open days
• Reference groups
• Charettes
• Web-based input
• Displays
• Submissions
• Ongoing information
exchange
Particular care needs to be taken to involve community members who are under-
represented in planning, including young people, people with disability, Indigenous
people and people of culturally diverse backgrounds. This is most effectively done
through existing community networks and participation activities held in local
community venues. Schools, TAFE colleges, universities and facilities for young
people at risk are also valuable partners in achieving participation.
A means of two-way communication should be also provided (e.g. phone number
and email address) during the planning process, and the community should receive
feedback on how their input is being considered.

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In planning new greenfield areas and some infill areas, there may not be an existing
community to involve. Information for these areas can be derived from:
• consulting with residents in adjoining areas, particularly communities with whom
the new residents will integrate
• government agencies with information about surrounding districts and regions
• Parents and Citizens Associations and teaching staff at local schools
• local historical, cultural and religious organisations
• service networks in adjoining areas
• analysis of the likely housing mix, and developers’ target market characteristics
• real estate agents (regarding resident and household types moving to the area).
4.2 Local Government Participation
Local governments are leaders and key stakeholders in planning for social
infrastructure. Most local governments in SEQ fulfil a number of roles in planning and
provision, which may include the elements shown below.
Table 2: Local Governments’ Roles in Social Infrastructure
Participation in Planning Participation in Provision
Research and data collection
Analysis, management and monitoring of
data and advice on existing provision
Facility provision
Asset management and staffing of local or
district community centres
Planning strategies
E.g. structure plans, master plans, social/
community plans, youth development plans,
health ageing plans, recreation plans
Resourcing
Supporting community networks through
financial, information, accommodation or
staff resources
Integrated planning
Setting or advocating local priorities for
social infrastructure, and participating in
regional agendas
Service delivery
Community, cultural, recreational,
information and health services, sometimes
including child care
Monitoring
Evaluating and tracking the effectiveness of
local social infrastructure in supporting
community wellbeing
Partnerships
Collaboration, either project-based or
ongoing, with other local governments and
State agencies to deliver facilities and
services
Most local governments develop and maintain an extensive knowledge of:
• socio-economic characteristics at the local and district levels
• distribution and capacity of social infrastructure
• unmet local needs and community issues with the adequacy of infrastructure
• effective local responses.
The actions noted in Table 3 (below) will assist in ensuring that local governments
keep their valuable local knowledge current.
Table 3: Keeping Local Governments’ Knowledge Current
Knowledge required Regular actions that will assist in keeping
information current
Socio-economic
characteristics
• Analysis of Census data at a local and district level
• Interviews/discussions with households, businesses,
community members
Distribution and capacity of
social infrastructure
• Regular phone surveys and site visits to community
facilities/services
• Discussions with users of facilities and services
Unmet local needs • Design workshops
• Open days
• Reference groups

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Knowledge required Regular actions that will assist in keeping
information current
• Charettes
• Web-based input
• Displays
• Submissions
• Ongoing information exchange
Effective local responses • Workshops
• Phone-in and email comment
• Interagency forums
• Think tanks
• Working groups
• Action research
Local governments (if they are not leading the social infrastructure planning process)
should be invited to participate by means of initial contact with the CEO, the manager
responsible for community and cultural infrastructure, and councillors for the area.
Regular, ongoing inclusion of local governments in regional planning forums for
social infrastructure is also essential.
4.3 State Government Participation
The Queensland Government includes agencies responsible for a wide range of
social infrastructure required in communities, with the exception of Commonwealth-
provided services such as income support, some residential care services and
tertiary education. Comprehensive social infrastructure plans will potentially require
the involvement of the following departments, whilst specific plans will require
participation by those with related interests:
• Department of Child Safety
• Department of Communities
• Department of Education, Training and
the Arts
• Queensland Corrective Services
• Department of Emergency Services
• Department of Housing
• Department of Justice and Attorney-
General
• Department of Public Works
• Disability Services Queensland
• Queensland Health
• Department of Local Government,
Planning, Sport and Recreation
• Department of State Development
Employment and Industrial Relations
• Queensland Police Service
An overview of the role of Queensland Government agencies in social infrastructure
planning is provided in Table 4. More detail on agency planning requirements for
different types of facilities is provided in Appendix 1.
Table 4: State Government Agency Roles in Social Infrastructure
Participation in planning Participation in provision
Planning strategies such as departmental
strategic and/or asset management plans
for facility and office space development
Direct delivery of community, cultural, arts,
educational, information, corrections, health
and emergency services
Planning and funding frameworks such as
the Department of Communities’ Needs
Based Planning and Resource Allocation
Framework
Provision of funding through a range of
programs implemented at State and regional
level
Collation and communication of regional
and State-wide information
Trialling new models of provision (e.g. health
precincts, multi-tenant service centres and
Private–Public Partnerships)
Setting or advocating regional and State-
wide priorities for social infrastructure,
and participating in regional agendas (e.g.
SEQ Infrastructure Plan, Regional
Managers’ Co-ordination Network)
Partnerships with other State and local
government agencies to deliver facilities and
services

29
Participation in planning Participation in provision
Monitoring the effectiveness of regional
and State-wide social infrastructure in
supporting community wellbeing
Participation in determining infrastructure
needs as part of local government planning
schemes, Local Growth Management
Strategies, and Structure Plans
Early engagement of State Government agencies in planning—from the scoping
stage—is recommended. It is particularly important to understand agencies’ existing
plans for social infrastructure in the area, program priorities and target groups,
forward capital works programs, partnership arrangements, and planning cycles.
State agencies may also have research information from their own planning
processes to assist with wider social infrastructure planning.
The participation of State Government agencies in social infrastructure planning is
usually initiated by invitations to regional managers and area office managers, and to
the Director-General of the relevant State Government department where appropriate
(depending on the scale of the planning exercise and expected outcomes). Inter-
agency participation mechanisms are an essential part of successful social
infrastructure planning and monitoring, and should be developed at a local and
regional level.
4.4 Commonwealth Government Participation
Commonwealth Government agencies also play a role in planning and providing
certain types of social infrastructure. Among the infrastructure facilities and services
supported by these agencies are: Home and Community Care (for aged people and
people with disability, jointly funded by the Queensland Government), aged care
packages, out-of-school-hours care, universities, and contributions to health and
housing services provision. Where appropriate, the participation of these agencies
(generally through regional offices) should be sought, through information exchange
and invitations to join agency planning exercises and planning strategy reviews.
Depending on the focus of the planning, the regional offices of the following
Commonwealth departments may need to be approached: Centrelink; Families,
Community Services and Indigenous Affairs; Education Science and Training; Health
and Ageing; and Veterans Affairs.
The relevant Area Consultative Committee (ACC), acting under the auspices of the
Commonwealth Department of Transport and Regional Services, should also be
consulted. ACCs are not-for-profit, community-based organisations funded by the
Commonwealth Government under the Regional Partnerships program. Their aim is
to build regional networks and partnerships to identify priorities and opportunities for
regional community and economic development, in accordance with a three-year
strategic plan.

30
5 Profiling
5.1 Community Profiling
5.1.1 Undertaking Demographic
Analysis
This section on profiling aims to
provide useful information about
accessing demographic data,
understanding population
characteristics, conducting regional
analysis, and identifying community
needs. The following agencies
provide expert services in relation to
these data and analysis, and it is
recommended that they be contacted
as a primary point of reference: the
Office of Economic and Statistical
Research (OESR), which is part of
the Queensland Treasury; the
Planning Information and Forecasting
Unit (PIFU), in the Department of
Local Government, Planning, Sport
and Recreation; and the Australian
Bureau of Statistics (ABS).
Demographic analysis is a key to
understanding the community.
Demographic analysis will identify the
number of people currently in the community, their characteristics, and the likely
future population. From this it may also be possible to make assumptions about the
nature of the future population who will live, and in some cases, work in or visit an
area.
The key source of data for all demographic analyses is the Australian Bureau of
Statistics (ABS). The ABS conducts and analyses the five-yearly Censuses of
Population and Housing. A Census was recently undertaken and preliminary results
are expected to be available in July 2007. This will remove the current reliance on
the 2001 Census data, which is problematic in rapidly growing areas such as SEQ.
5.1.2 Analysing the Existing Population
The initial task in a demographic analysis is to determine the existing population of
the area or areas under consideration. Further discussion on how to determine these
‘areas’ can be found in the following section, however the area adopted will depend
on the level of analysis being considered for the provision of community facilities and
services. The smallest level of analysis presently possible on demographic data is
the Census Collector District (CCD)1
. If the neighbourhood is larger than one CCD
(which generally average around 220 dwellings in urban areas), then CCDs should
be amalgamated, either using ABS’s electronic software C-Data, or engaging ABS to
amalgamate the data.
1
ABS is introducing a new geographical unit, called a meshblock, which will be trialled on some data
from the 2006 Census and fully adopted for the 2011 Census. The meshblock is expected to be
20–25 per cent of the size of a Census Collector District (CCD). From 2011, detailed data will be
available only as meshblocks, rather than CCDs.
This section outlines the process of profiling
existing and future communities and facility
provision, and provides guidance on data
management.
Profiling
• Identify existing and projected
demographic characteristics
• Assess settlement patterns
and catchment areas
• Describe and quantify existing
social infrastructure
• Analyse existing information
on community needs
Provision and
Implementation
P
a
r
t
i
c
i
p
a
t
i
o
n
Analysis/Assessment

31
If the analysis relates only to the local level (refer to Section 3.2), then it may be
appropriate to collect data at the Statistical Local Area (SLA) level2
. SLAs can also
be amalgamated in the same way. The Local Government Area (LGA) is the next
largest area of published Census data. Beyond this, ABS provides Census
information on Statistical Sub-Divisions and Statistical Divisions across Queensland
(the latter including capital cities), and then at the State level. There is also
information available on Urban Centres/Localities (although these do not equate to
SLAs and only cover portions of Australia) and Statistical Districts (selected urban
areas outside capital cities).
What is important is that the areas used are consistent with those used in other
planning units within an organisation (e.g. a Strategic Planning Branch in a council)
or other important data. Particularly important is that the areas are consistent with:
• any existing ‘community profile’
• strategic planning precincts
• existing mapping
• precincts used for Local Growth Management Strategy population projections and
Priority Infrastructure Plans.
It should also be considered whether the focus of the analysis should be the resident
population only, or include visitors to the area (such as tourists) and/or workers in the
area3
. Determining this might depend on the extent to which these groups could be
expected to use any infrastructure provided, and therefore the extent to which the
capacity of the infrastructure should take into account the needs of these groups.
A data set is available called ‘Estimated Resident Population’, which accounts for the
usual place of residence. This provides up-to-date estimates of the true resident
population on an annual basis but is only available for LGAs and SLAs4
. Other
information is also available (e.g. from http://www.btr.gov.au/) on the numbers of
tourists who might visit a locality on an annual basis, and estimates may be made at
peak times by local tourist authorities. Data on the working population is available
from ‘Journey to Work’ data or ‘Working Population Profile’ data prepared from the
Census by the ABS.
Some historical data (relating to one or two previous Censuses) may be useful to the
analysis, especially:
• population by age groups
• dwellings by type.
This data can also be obtained from the ABS. When making comparisons, it is
important to ensure that LGA or SLA boundaries have not changed between
Censuses.
It is also important to note that some groups, including Indigenous people, may not
participate in the Census to the same level as other groups, and local enquiries
should be made to supplement Census data.
2
An SLA generally equates to a ‘suburb’ in a predominantly urban area, but in other areas can even
equate to a Local Government Area.
3
Effective from the 2006 Census, all Census data will typically be based on a ‘usual resident’, i.e.
the people who normally live at an address (in contrast to the current Census data, which normally
includes visitors to an area on Census night and excludes usual residents who are absent on
Census night). However, information will still be available on overnight visitors.
4
The Planning Information Forecasting Unit of the Department of Local Government, Planning Sport
and Recreation (PIFU) (www.lgp.qld.gov.au/pifu) makes estimates of the resident population at
Census Collector District (CCD) level.

32
Tips for demographic analysis
• Check whether somebody else has already compiled a ‘community profile’ or
similar product that could meet your needs.
• Don’t collect more information than is relevant—specifically, think about those
characteristics (including the key risk indicators) that will influence the type or
number or attributes of community facilities.
• Use the most up-to-date information available. Population estimates may be
available to update Census data at the Local Government Area level.
• Use the same area boundaries as other relevant planning
agencies/stakeholders, or other important data, particularly population
projections used in the Local Growth Management Strategy.
• Use appropriate ‘comparative areas’ (such as a sub-region, region,
metropolitan area or State) to determine whether the demographic profile of
the area is typical or atypical.
• Consider both the number and proportion of people with particular
demographic characteristics—while the proportion may be high compared to
another area, it might represent very few people.
5.1.3 Analysing Population Characteristics
Population numbers are important to determine the size of catchment areas and the
facilities that will serve them. Population characteristics are important in determining
the nature and type of these facilities.
The ABS Census provides a wealth of information on demographic characteristics.
Once the area or areas of analysis have been determined, information on
characteristics can be collated. It is often useful to provide several ‘comparatives’ in
terms of the areas of analysis, e.g. as well as Statistical Local Areas, comparative
demographic information might be provided on the Local Government Area (LGA) as
a whole, and possibly the Statistical Subdivision or State. This allows the researcher
to determine whether the demographic profile of the area under consideration is
typical, or whether particular characteristics, for example the proportions of young
children aged 0-4, or people from different cultural backgrounds, are atypical in the
local area. This information will have an impact on the facilities to be planned.
In collating information on demographic characteristics, the rule is to focus on those
characteristics that will influence the type or number or attributes of the community
facilities that are planned. These include:
• number and proportion of people in different age groups
• number and proportion of Aboriginal and Torres Strait Islander People and people
from non-English speaking backgrounds
• proportion of new residents (not counted at the same address in the previous
Census)
• indicators of socio-economic status, such as household income and housing
payments
• household type
• dwelling type
• vehicle ownership.

33
Target groups
Demographic analysis should take into account the needs of particular target
groups as well as the needs of the wider community. Demographic data will help
identify potential needs for the following target groups:
• children
• young people
• women, including older women
• Aboriginal and Torres Strait Islander people
• culturally and linguistically diverse people
• people with disabilities
• older people
• single parents
• unemployed people
• people living alone
• income support recipients
• other.
In analysing the demographic data, it is important to have regard to both the number
and proportion of people with particular characteristics. For example, while the
proportion of people 85-years-and-over may be particularly high in a local area
compared to an LGA as a whole, this could only represent 20 or 30 people. The
example below provides an example of the type of information which might be
collected and analysed on key demographic indicators. This information can either
be derived from C-Data or the Australian Bureau of Statistics website.
Key demographic indicators by aggregated CCDs for selected localities
Indicator Derby SLA Greenwald LGA Qld
Population Summary
Total Persons 3,195 129,429 3,655,139
Age Summary
0-4 years 145 7,702 242,551
0-4 years % 4.5% 6.0% 6.6%
5-14 years 251 18,300 519,991
5-14 years % 7.9% 14.1% 14.2%
15-24 years 430 14,678 495,235
15-24 years % 13.5% 11.3% 13.6%
65+ years 571 20,672 443,105
65+ years% 17.9% 16.0% 12.1%
Ethnicity Summary
Aboriginal and TS Islanders 16 1,505 112,772
Aboriginal and TS Islanders (%) 0.5% 1.2% 3.1%
Overseas Born: NESB (a) 117 6,214 266,833
NESB (%) (a) 3.7% 4.8% 7.3%
New Residents
Other address 5 years ago (%) (b) (c) 47.6% 40.8% 10.9%
Income Summary
Household income < $500/wk (%) (d) 37.3% 40.4% 10.9%
Household Income > $1000/wk (%) (d) 33.2% 26.4% 35.1%
Household Summary (e)
Couple families with children (%) (f) 19.6% 29.2% 32.8%
Couple families without children (%) (f) 27.1% 30.7% 27.4%

34
Indicator Derby SLA Greenwald LGA Qld
One Parent Families (%) (f) 9.8% 12.1% 11.8%
Lone Person Households (%) (h) 31.4% 23.8% 23.2%
Households Owned (%) (h) 28.4% 38.5% 36.7%
Households Being Purchased (%) (h) (i) 14.7% 23.8% 25.8%
Households Renting (%) (h) 40.6% 29.4% 30.1%
Dwelling Summary
Separate House (%) 25.6% 96.1% 77.1%
Semi-detached Dwelling (%) 6.5% 9.1% 6.8%
Flats, units & apartments 55.3% 16.7% 12.1%
Other Dwellings (%) 8.7% 4.2% 3.1%
Occupancy Ratio
Occ Private Dwelling Occupancy Ratio 1.7 2.2 2.3
Vehicle Availability (j)
No Vehicles (%) 8.1% 8.0% 9.3%
2 or more vehicles 31.1% 42.0% 44.5%
5.1.4 Analysing Population Projections
Demographic analysis needs to consider not only the existing population, but the
future communities who will live, visit or work in an area. The most important source
of information on the future community is the population projections which are to be
used within the Local Growth Management Strategy (LGMS). These will relate to the
dwelling targets in the SEQ Regional Plan. These projections are prepared by the
Planning Information and Forecasting Unit (PIFU) at the Local Government Area
(LGA) and Statistical Local Area levels. Estimates of capacity on a within-LGA basis
may be made by the Strategic Planning Branch of councils as an input to projections,
but are then signed off by PIFU. Again, it is important that the areas of analysis used
for planning social infrastructure correlate with the areas of analysis adopted for the
LGMS projections. This will become even more important when a Priority
Infrastructure Plan is developed for infrastructure charges.
It is important in planning future social infrastructure to give consideration to the
staging of provision of facilities. In this regard it is often useful to apply the
population projections at five-year intervals, at least for the foreseeable future,
particularly where these line up with council budgeting processes. An ultimate
population projection can also be useful for the purposes of future planning, although
projections beyond 20 years could be considered ‘crystal ball gazing’. Nevertheless,
it may give some guidance as to where future capacity may be required in facilities
which are planned.
It is also useful to review the likely characteristics of future populations. Although the
characteristics which have been projected forward are limited, there are several
sources of such information. PIFU and the Office of Economic and Statistical
Research (OESR) (www.oesr.qld.gov.au) both provide useful projections on age and
household type, and custom data can be ordered. OESR makes its projections
available at the State and Statistical Division level. PIFU produces projections of
some characteristics at lower levels of geography—LGA, SLA and aggregations of
Census Collector Districts.
5.1.5 Assessing Settlement Patterns and Catchment Areas
Different service and facility providers use different catchment areas for planning in
response to identified needs. Few of these boundaries align (e.g. Queensland
Education catchments do not align with Queensland Health catchments), making it
difficult to apply consistent catchment areas for individual facilities.
At the Local Government Area level, it is desirable for the catchment areas used for
demographic analysis to be consistent with the planning areas used for projecting

35
population growth or developing planning provisions, and developing Priority
Infrastructure Plans. This may not always be possible (i.e. if planning areas do not
align with Census Collector District boundaries, or do not align with apparent
communities of interest), in which case demographic catchments should attempt to
relate as best they can to a logical functioning of the community (e.g. by combining a
number of planning areas). Council division (electoral) boundaries reflect the
equitable distribution of the population. Before using these as a boundary for a
planning area, care should be taken to ensure they reflect the logical functioning of
the community.
Criteria for determining infrastructure planning areas
• Reflect the logical functioning of the community—the hierarchy of central
places (city centre, district centre, local centre and neighbourhood centre),
and the patterns of movement and association between them (including
how they are supported by movement systems, i.e. road hierarchies, public
transport and pedestrian/bicycle networks)
• Compatibility with the hierarchy of centres established in the SEQ Regional
Plan
• Compatibility with land use planning areas used for strategic, statutory and
infrastructure charges planning
• Topographical and other features, including barriers (such as rivers and
arterial roads) and their influence on movement patterns and the shape of
communities of interest.
5.2 Inventories of Existing Facilities
An inventory of existing facilities is an essential tool that supports social infrastructure
planning. Before the demand for new facilities can be identified, it is important to
establish what facilities already exist, and their capacity to accommodate additional
demand.
The inventory should include council-, State-, private- and community-sector-owned
facilities—to give as complete a picture of available infrastructure as possible. It
should contain only the information needed to meet this purpose. Before designing a
data inventory checklist or survey, it can be helpful to think about how the data will be
used. For example, a social infrastructure planning process will need answers to the
following questions:
• What type and level (hierarchy) of facilities already exist?
• What is the spatial distribution of existing facilities (are they concentrated/evenly
dispersed/poorly distributed)?
• How well do existing facilities meet current demand?
• Are there any facilities that are under-utilised, in need of major works, or subject
to planned changes in the future?
• What is the ownership of facilities, how secure is their tenure, and is access
affordable for all income groups?
• Are there any target groups not being catered to by existing facilities?
• What opportunities are there for co-location, multiple use or expansion of existing
facilities?
A facilities survey is the most commonly used (and least costly) method of collecting
information for a community facilities inventory. The survey method used will
influence the accuracy of this data—surveys by interview, rather than self-
administered surveys by facilities providers, will provide a more complete and
consistent data set. A number of sources can be used to identify the facilities in an
area, including: community information listings, Yellow Pages, council land use and
rates data bases, and website listings.

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