Peppermint Grove Beach
_________________________________________________________________________
Land Use Strategy
2013
C5.83
This Strategy was prepared by the Shire of Capel
Planning and Development Services Division
© Shire of Capel 2013
Adopted as Planning Policy 15.25 by resolution of
the Council at the ordinary meeting on July 17, 2013
Shire of Capel
PO Box 369
CAPEL WA 6271
(08) 9727 0222
[email protected]
www.capel.wa.gov.au
______________________________________
Paul Sheedy
Chief Executive Officer
Shire of Capel
Shire of Capel
Peppermint Grove Beach
Land Use Strategy
1.0
Introduction
1.1
1.2
1.3
1.4
Summary
Background
Objectives
Methodology
2.0
Planning Framework
2.1
2.2
Regional Planning Framework
Local Planning Framework
3.0
Key Issues
3.1
3.2
3.3
3.4
3.5
3.6
3.7
Demography
Physical Characteristics
Environmental Values
Community Infrastructure
Transport and Traffic
Economy
Urban Growth
4.0
Community Consultation
4.1
4.2
4.3
Community Needs Assessment 2003
Community Workshop 2012
Formal Consultation
5.0
Land Use Strategy
5.1
5.2
5.3
Opportunities and Constraints
Planning Precincts
Implementation
Peppermint Grove Beach Land Use Strategy
1
2
4
4
7
13
18
25
32
35
38
40
41
46
47
50
52
53
64
ii
Shire of Capel
Plans and Figures
Figure 1
Location Plan
5
Figure 2
Aerial view of Peppermint Grove Beach
6
Figure 3
Greater Bunbury Region Scheme
12
Figure 4
Town Planning Scheme No. 7
15
Figure 5
Age Structure 2011
20
Figure 6
Age Structure 1996-2011
20
Figure 7
Urban Form
30
Figure 8
Precinct 2 - Future Residential
56
Figure 9
Precinct 3 - Local Centre Site
58
Figure 10
Precinct 4 - Holiday Park Site
59
Figure 11
Peppermint Grove Beach Structure Plan
63
Schedule of Recommendations and Actions
65
Appendices
Appendix 1 Trails Master Plan
70
Appendix 2 Plant taxa recorded during 2011
71
Appendix 3 References
73
Appendix 3 Acknowledgments
74
iii
Peppermint Grove Beach Land Use Strategy
Shire of Capel
1.0
Introduction
1.1 Summary
The Peppermint Grove Beach Land
Use Strategy is a component of the
Shire’s local planning strategy
which comprises the framework for
local planning in the Shire and the
strategic basis for the local
planning scheme.
The local
planning strategy provides the
interface between regional and
local planning and establishes the
objectives for future planning and
development
within
the
municipality.
This Strategy provides the strategic
direction for land use planning in
Peppermint Grove Beach to 2031
and is required to be generally
consistent with state and regional
planning policy including endorsed
strategies, structure plans and
strategic development initiatives.
The Land Use Strategy identifies
that Peppermint Grove Beach has
been subdivided and developed
almost to its ultimate capacity,
apart
from
some
additional
subdivision north of Hayfield Drive.
In view of the physiographic
constraints
evident
(including
landform, wetlands and access) the
Strategy recommends that no
further residential zoning occurs
other than minor amendments to
reflect already approved residential
development outcomes.
Assuming
20%
vacancy
of
dwellings and occupancy of around
1.8 persons per dwelling beyond
2031, the ultimate permanent
resident
population
could
be
around 800 persons.
This is
considered a sustainable population
in view of the vision of the Strategy
and constraints related to road
access, traffic management and
physiography.
However the Shire is unable to
predict the impact of holiday home
occupation and holiday rentals
which are likely to increase the
‘service population’ considerably
around holiday periods.
One of the more significant
recommendations is that future
subdivision
and
development
should be limited to the current
urban zoning and the relevant
outcomes of the Peppermint Grove
Beach Land Use Strategy and the
Shire of Capel Local Planning
Scheme.
Current estimates indicate that the
total number of dwellings in
Peppermint Grove Beach could be
up to 520 ultimately.
Peppermint Grove Beach Land Use Strategy
1
Shire of Capel
1.2 Background
1.2.1 Peppermint Grove Beach
Peppermint
Grove
Beach
is
located in the South West region
of WA on the Indian Ocean coast
in the Shire of Capel (see Figure
1). It had an estimated resident
population of approximately 410
in June 2013.
It is a small residential settlement
established in the 1970s on
coastal
dunes
between
Geographe Bay and estuarine
wetlands eight kilometres northwest of Capel.
Development is typified by larger,
conventional residential lots with
built form from a range of
periods.
Many homes have
impressive views of the Indian
Ocean, the foreshore, adjacent
wetlands or the rural hinterland.
There are many holiday homes in
the locality, and this is reflected
in the fact that 52% of dwellings
were
unoccupied
when
the
Census was taken in 2011.
Peppermint Grove Beach provides
a range of services including a
community
centre,
volunteer
bush fire brigade, public open
space, playgrounds and other
recreational facilities.
The usually calm waters of
Geographe Bay and the long
stretches of beach are perfect for
walking,
beach-combing,
swimming and beach fishing. A
caravan park site is available but
is currently not operating.
Peppermint
Grove
Beach
is
accessed from Ludlow Road North
and Peppermint Grove Road
through rural areas that are
characterised
by
established
agricultural uses, wetlands and
Tuart forest.
The
locality
has
significant
Aboriginal and European cultural
heritage. McCourt’s Farm on Lot
4 Hayfield Drive has a limestone,
wattle and daub cottage which
was built in 1869 and is listed on
the Municipal Inventory.
The
place
is
significant
for
its
association with early coastal
settlement and the McCourt
family.
Geographe Bay foreshore and vegetated Quindalup dunes
2
Peppermint Grove Beach Land Use Strategy
Shire of Capel
1.2.2 Population
1.2.3 Planning
The
Shire
of
Capel
has
experienced substantial resident
population
growth
and
demographic change over the
past ten years and this is
anticipated to continue.
The Shire of Capel land use
planning programme is intended
to guide urban development and
community
change
in
a
sustainable manner.
A critical
component of this programme is
the
preparation of
a local
planning strategy.
This is
anticipated to provide sound
strategic objectives and planning
outcomes that will define the
growth of the Shire’s settlements
and provide a framework for
sustainable growth.
According
to
the
Australian
Bureau of Statistics (ABS) the
population of the Shire increased
from 7,107 in 2001 to 15,383 in
2012.
The average annual
growth rate between 2001 and
2011 was 7.7%, one of the
highest in regional Australia.
Various population projections
estimate that the growth trend in
the Shire will continue over the
long term to reach a population of
around 25,500 by 2026.
The
permanent
resident
population of Peppermint Grove
Beach
is
estimated
at
approximately 410 in 2013 and
this may increase to more than
800 over the next twenty years.
The
residential
area
of
Peppermint Grove Beach has a
very
low
rate
of
dwelling
occupancy with 52% of dwellings
vacant in 2011, compared to only
11.1% in the Shire and 10.7% in
Australia. This is likely to be a
function of the high number of
holiday homes and results in a
very low number of residents per
dwelling, averaging 1.2 persons
across all dwellings in 2011.
Peppermint Grove Beach Land Use Strategy
The local planning strategy for
the Shire of Capel is being
undertaken in components with
the Capel Townsite Strategy
adopted by Council in 2008 and
the Boyanup Townsite Strategy in
2010.
The Peppermint Grove Beach
Land Use Strategy has been
formulated to address longer
term land use and development
outcomes in the settlement. It
has been prepared in accordance
with the guidelines set out in the
Western
Australian
Planning
Commission’s
‘Local
Planning
Manual’.
The Strategy is a key policy of the
Shire in relation to land use
planning and other development
issues
in
the
locality.
Accordingly, the Strategy has
been adopted as a planning policy
pursuant
to
Town
Planning
Scheme No. 7.
3
Shire of Capel
1.3 Objectives
1.4 Methodology
The land use planning vision for
Peppermint Grove Beach is to:
The Strategy is based on analysis
of a range of environmental,
social and other factors which
have been used to formulate
strategic directions to guide the
sustainable
development
of
Peppermint Grove Beach.
The
methodology included:
“Conserve and enhance
the environment and
character of Peppermint
Grove Beach as well as
the lifestyle and security
of residents and visitors”.

Investigation
of
the
characteristics and setting of
Peppermint Grove Beach as
well as existing land use and
development outcomes.

Description of the state and
regional land use planning
framework and other relevant
policy initiatives.

Analysis of the key issues
including
the
physical
environment,
demography,
land supply, infrastructure,
environmental
values,
the
economy
and
community
facilities.

Identification of development
opportunities and constraints
in
conjunction
with
the
community.

Formulation
of
strategies
facilitating implementation of
the
land
use
outcomes
including planning
scheme
measures,
other
local
initiatives, State Government
roles and other measures to
facilitate sustainable land use
outcomes over strategic time
frames.
The objectives of the Land Use
Strategy are to:


establish the key long-term
land use planning strategies
for Peppermint Grove Beach.
provide
guidance
to
the
community and the Shire in
relation to sustainable land
use and development in the
locality.

establish strategic actions in
relation
to
residential,
community,
environmental,
recreation,
economic
and
other planning outcomes.

formulate a Structure Plan
which will give direction on
the sustainable size and urban
form of Peppermint Grove
Beach.
4
Peppermint Grove Beach Land Use Strategy
Shire of Capel
Figure 1
Location Plan
Bunbury
DALYELLUP

Dardanup
Gelorup
Indian
Ocean
Stratham
Boyanup
Peppermint
Grove Beach
Geographe
Tuart
Forest
National
Park
Bay

Donnybrook
CAPEL
Whicher

Range
Busselton
G
Peppermint Grove Beach Land Use Strategy
5
Shire of Capel
Figure 2
Aerial View of Peppermint Grove Beach
not to scale
6
Peppermint Grove Beach Land Use Strategy
Shire of Capel
2.0
Planning Framework
2.1 Regional Planning Framework
2.1.1 State Planning Strategy 1997
The Western Australian Planning
Commission (WAPC) released the
State Planning Strategy in 1997.
It
comprises
a
range
of
strategies, actions, policies and
plans to guide the planning and
development of regional and local
areas in Western Australia and
assists in achieving a coordinated
response to future planning
challenges and issues by State
and Local Governments.
The State Planning Strategy
contains the following five key
principles:
Environment - to protect and
enhance the key natural and
cultural assets of the State and
deliver to all Western Australians
a high quality of life which is
based on sound environmentally
sustainable principles.
Community - to respond to
social changes and facilitate the
creation of vibrant, accessible,
safe
and
self-reliant
communities.
Economy - to actively assist in
the creation of regional wealth,
support the development of new
industries
and
encourage
economic activity in accordance
with sustainable development
principles.
Infrastructure - to facilitate
strategic
development
by
ensuring land use, transport and
public
utilities
are
mutually
supportive.
Regional Development - to
assist
the
development
of
regional Western Australia by
taking account of the region’s
assets and accommodating the
individual requirements of each
region.
2.1.2 State Sustainability Strategy 2003
The State Sustainability Strategy
was finalised in 2003 and
establishes a footprint for the
sustainable future of WA.
It is a comprehensive guiding
document with a range of
policies, recommendations and
actions
relating
to
global
sustainability, natural resource
Peppermint Grove Beach Land Use Strategy
management and sustainability of
settlements, communities and the
economy.
Many aspects of the Strategy
have been implemented resulting
in relevant documents such as
Liveable Neighbourhoods, SPP 3
Urban Growth and Settlement
and SPP 2.9 Water Resources.
7
Shire of Capel
2.1.3 Liveable Neighbourhoods 2007
Liveable Neighbourhoods (LN)
has been adopted by the WAPC
as an operational policy and is to
be followed in the design and
approval of structure plans and
subdivision for new urban areas.
LN
indicates
that
the
neighbourhood should be the
basic building block for urban
development with interconnected
and integrated neighbourhoods
clustered into well defined towns
and communities.
The Policy
proposes that new urban areas
will be comprehensively planned
as sustainable communities which
provide local facilities, services,
public
transport
and
job
opportunities within easy reach
by walking or cycling, reducing
dependence on the private car for
travel.
In addition to meeting day to day
needs, neighbourhoods will be
designed to build a strong sense
of place and community by
providing for a mix of housing
types and households, creating
the
opportunity
for
social
interaction and designing at a
human scale so that streets are
attractive, convenient and safe
public spaces.
LN principles apply to the
preparation
and
review
of
regional and district structure
plans for new growth areas, local
structure
plans
for
new
subdivisions, and in planning for
the
revitalisation
or
redevelopment of existing areas.
LN principles include planning for
a sense of community and local
identity, the protection of key
environmental areas and the
incorporation
of
significant
cultural
and
environmental
features.
2.1.4 State Planning Policies
SPP 2 Environment and Natural
Resources Policy 2003
SPP
2
aims
to
integrate
environmental
and
natural
resource
management
with
broader land use planning and
decision making in order to better
protect and enhance the natural
environment and the sustainable
use of natural resources in
Western Australia.
The Policy sets out measures that
planning strategies and district
planning schemes should achieve
with
regard
to
broad
sustainability and environmental
principles, water resources, air
8
Peppermint Grove Beach Land Use Strategy
quality, soil and land quality,
biodiversity, agricultural land,
minerals and basic raw materials,
marine
resources
and
aquaculture, landscape values,
and greenhouse gas emissions
and energy efficiency. It sets out
a range of biodiversity and
conservation values that should
be protected through mechanisms
in
planning
strategies
and
planning schemes.
SPP 2.6 Coastal Planning Policy
This 2003 Policy provides higher
order guidance for decisionmaking on coastal planning
matters.
Planning for coastal
Shire of Capel
land is about balancing competing
needs and desires in a way that
takes into account the values of
the coast. These values include
its
scenic,
aesthetic
and
ecological
qualities,
its
recreational opportunities, and its
social, indigenous, cultural and
economic importance.
The Policy addresses land use
planning and development issues
specifically as they relate to the
protection and management of
the coast. The objectives of SPP
2.6 are to:




protect, conserve and enhance
coastal values, particularly in
areas of landscape, nature
conservation, indigenous and
cultural significance;
provide for public foreshore
areas and access to these on
the coast;
ensure the identification of
appropriate areas for the
sustainable use of the coast
for
housing,
tourism,
recreation,
ocean
access,
maritime industry, commercial
and other activities; and
ensure that coastal facilities
and development takes into
account
coastal
processes
including erosion, accretion,
storm surge, tides, wave
conditions, sea level change
and biophysical criteria.
management plans in partnership
with the broader community is
also strongly advocated.
SPP 3 Urban Growth and
Settlement Policy 2006
The general intent of SPP 3 is to
create communities that are
sustainable in accordance with
the following principles:




The Policy requires strategic plans
to
guide
local
planning,
development
setbacks
for
protection
against
coastal
processes such as erosion and
storms, and the provision of
coastal foreshore reserves.
Guidance
is
provided
on
determining
setbacks.
The
preparation of coastal planning
strategies or coastal foreshore
Peppermint Grove Beach Land Use Strategy

promote a sustainable and
well-planned
pattern
of
settlement, with sufficient and
suitable land to provide for a
wide
variety
of
housing,
employment,
recreation
facilities and open space.
build on existing communities
with established local and
regional
economies,
concentrate investment in the
improvement of services and
infrastructure, and enhance
quality
of
life
in
those
communities.
manage
the
growth
and
development of urban areas in
response to the social and
economic
needs
of
the
community and in recognition
of
relevant
climatic,
environmental, heritage and
community
values
and
constraints.
promote the development of a
sustainable
and
liveable
neighbourhood form which
reduces energy, water and
travel demand while ensuring
safe and convenient access to
employment and services by
all modes, provides choice and
affordability of housing and
creates an identifiable sense
of place for each community.
coordinate new development
with the efficient, economic
and
timely
provision
of
infrastructure and services.
9
Shire of Capel
SPP 3.1 Residential Design Codes
State
Planning
Policy
3.1
Residential Design Codes applies
to residential development and
‘Residential’ zoned land in WA.
The Codes were revised in 2013
and provide a comprehensive
basis for the control of residential
development. They are intended
to address residential layout and
design requirements and to
minimise the need for local
government to introduce separate
planning
policies
concerning
residential development. The RCodes do not address the physical
construction
standards
of
buildings which are addressed by
the Building Code of Australia.
In Peppermint Grove Beach the
Residential zones are generally
coded R12.5 (average lot size
800m2) with some R5/R10 in the
extreme north (average lot sizes
of 1,000-2,000m2).
SPP 3.4 Natural
Disasters 2006
Hazards
and
The purpose of this policy is to
inform and guide the WAPC in
undertaking
its
planning
responsibilities, and in integrating
and coordinating the activities of
State agencies that influence the
use and development of land that
may be affected.
The objectives of the policy are to
include planning for natural
disasters
as
a
fundamental
element in the preparation of all
planning documents, specifically
local planning strategies and town
planning
schemes;
and
to
minimise the adverse impacts of
natural disasters on communities,
the
economy
and
the
environment
through
the
implementation of these planning
instruments.
2.1.5 DC Policy 6.1 – Country Coastal Planning Policy
Development Control Policy 6.1
was prepared by the WAPC in
1989. The Policy is intended to
assist
local
government,
developers
and
planning
consultants
by
providing
guidelines for dealing with new
development and subdivision in
coastal environments. It may not
always be applicable to previously
developed areas.
The objectives of the Policy are:

to encourage orderly and
balanced development on and
adjacent
to
the
coast
10 Peppermint Grove Beach Land Use Strategy


consistent with the protection
of coastal resources.
to protect, conserve and
enhance,
as
appropriate,
coastal resources.
to permit public access to the
coast consistent with the
protection
of
coastal
resources.
The Policy requires a number of
different issues to be considered
when planning along the coast,
and incorporated into subsequent
foreshore management plans,
including land use and tenure,
ecology, visual amenity, water
and soil quality, and access.
Shire of Capel
2.1.6 Visual Landscape Planning in WA 2007
Visual Landscape Planning in
Western Australia is a nonstatutory manual for evaluation,
assessment, siting and design
produced by the WAPC in 2007.
This comprehensive manual has
been developed to help public and
private sector planners address
visual landscape in the planning
process.
The
manual
explains
the
fundamental planning tools of
visual landscape evaluation and
visual impact assessment.
It
provides
guidelines
for
the
location, siting and design of land
use and development proposals in
relation to a range of landscape
types and land uses.
2.1.7 Regional Planning Strategies
South-West Framework 2009
Adopted by the WAPC in October
2009, the draft South-West
Framework provides broad future
directions for the South West
region and its settlements. The
Framework identifies Peppermint
Grove Beach as a ‘village’ which
plays a low-key residential and
holiday role.
liveable, with a strong sense of
identity and place, high quality of
life and that are designed to be
environmentally sustainable.

Activity centres network: a
network and hierarchy of centres
that provide a more equitable
distribution of jobs, services and
amenity.

Movement
network:
an
integrated system of public and
private transport networks that
are designed to support and
reinforce the activity centres
network, and reduce the time,
cost and impact of travel.

Green network: a network of
parks, reserves and conservation
areas that support biodiversity,
preserve natural amenity, protect
valuable natural resources and
protect valuable water resources.
Greater Bunbury Strategy 2011
The
draft
‘Greater
Bunbury
Strategy 2011-2031 and Beyond’
has been prepared by the
Department of Planning to guide
future urban and regional land
use
planning,
growth
and
infrastructure delivery in the subregion. The Strategy advocates a
‘Compact and Connected’ growth
pattern as the most efficient and
sustainable way for the subregion to develop.
The Greater Bunbury Strategy
has identified four integrated
layers that will form the key
structural elements of the region,
and be used to reinforce the
spatial framework objectives:

The Strategy is a higher level
document
and
identifies
Peppermint Grove Beach as a
‘village’
in
the
settlement
hierarchy. It a community that
relies on nearby towns for most
goods and services but in some
locations could accommodate a
primary school and small-scale
local shopping facilities.
Settlement hierarchy: planning
for settlements to be truly
Peppermint Grove Beach Land Use Strategy
11
Shire of Capel
In terms of growth, the Strategy
indicates that Peppermint Grove
Beach will not be subject to urban
expansion other than to areas
that have already been identified
2.1.8
for urban development within
local planning schemes and land
use strategies.
Greater Bunbury Region Scheme 2007
To reflect the recommendations
of the State Planning Strategy
and State Planning Framework
the WAPC has prepared the
Greater Bunbury Region Scheme
(GBRS) which was enacted by
State Parliament in 2007.
The GBRS is a statutory planning
document which applies to the
City of Bunbury and the Shires of
Capel, Dardanup and Harvey.
The GBRS can enable strategic
plans for the region and secure
land for a range of regional
purposes including for transport,
other infrastructure and regional
open space.
It establishes a
number of polices that represent
and reflect recommendations and
requirements of various State
Planning Policies within the State
Planning Framework.
The
Scheme
identifies
the
residential area of Peppermint
Grove Beach in the ‘Urban’ zone
with significant reserved areas of
‘Regional Open Space’ along the
foreshore and ‘Waterways’ to the
east. The GBRS has implications
for the Town Planning Scheme
which is required to comply with
the GBRS pursuant to the
Planning and Development Act
2005.
Figure 3
Greater Bunbury Region Scheme (extract)
not to scale
12 Peppermint Grove Beach Land Use Strategy
Shire of Capel
2.2 Local Planning Framework
2.2.1 Shire of Capel Strategic Plan 2009-2020
The Strategic Plan “Towards 2020
– a vision for the Shire of Capel”
establishes
the
long-term
directions for the Shire. The Plan
not only addresses strategic
initiatives and the way the Shire
will conduct its business but also
focuses on matters which are
important to the community.
This will allow the Shire to
implement strategies over the
next ten years that address the
ongoing growth and change.
The Strategic Plan ‘Vision’ is to
“Encourage community diversity,
sustainability and growth without
compromising our rural and
coastal lifestyle.”
The five key focus areas are:
1.
2.
3.
Leadership Experience
Community Experience
Environment Experience
4.
5.
Economic Experience
Infrastructure Experience
Environment Experience Strategy
1 seeks to “Review the Land Use
Strategy and District Planning
Schemes
to
incorporate
sustainability
principles”,
including the Actions to:

“Review…
urban
strategies”, and
area

“Prepare and review Structure
Plans for urban and rural
areas”.
Environment Experience Strategy
2 is to “Plan to undertake
specialised
studies
identified
within
endorsed
land
use
strategies to ensure orderly and
appropriately
coordinated
development
and
land
use
management”.
2.2.2 Peppermint Grove Beach Structure Plan 1990
This Structure Plan was prepared
in the late 1980s to provide some
guidance
in
relation
to
development of land owned by
the Campbell family to the east of
Peppermint Grove Terrace.
The Plan was not formally
adopted or endorsed but did
provide structural outcomes as a
guide to future subdivision and
development.
Peppermint Grove Beach Land Use Strategy
The Plan provided for the future
subdivision of the subject land
and for future urban, shopping
and holiday accommodation land
use.
The Plan has been superseded by
subsequent
rezoning
and
subdivision outcomes and by the
identification
of
constraints
related to landform/wetlands,
access, servicing, and native
vegetation/habitat.
13
Shire of Capel
2.2.3 Shire of Capel Land Use Strategy 1999
The Land Use Strategy was
adopted in 1999 and represents
the primary strategic land use
planning document for the Shire
of Capel. The general objectives
of the Strategy are to:




encourage the use of good
agricultural
land
by
economically active farmers
and
to
maximise
the
productivity of the Shire;
provide for long term increase
in settlement areas which
provide a range of lifestyles
within the context of a
settlement strategy that will
minimise effects on adjoining
agricultural
and
industrial
activities and the environment
values of the District;
recognise the principles and
objectives
of
the
State
Planning Strategy and the
Bunbury/Wellington
Region
Plan; and
provide for compatible and
sustainable
use
of
land
2.2.4
consistent with key land use
including agriculture, mining,
industry,
residential,
rural
residential and reserves.
The Strategy provides a land use
and physical profile of the Shire
and sets out principles, objectives
and policies for eleven Planning
Units. Planning Unit CA2 - Capel
Coastal
includes
Peppermint
Grove Beach and surrounding
areas. The objective of Planning
Unit CA2 is to conserve the
natural
values
of
the
Ludlow/Stirling
and
Minninup
Tuart forests and the coastal
wetlands,
and
provide
opportunities for a variety of rural
land uses.
The Land Use Strategy indicates
that the extent of the urban area
of Peppermint Grove Beach is
confined to the prominent dune
system to the south of the Capel
River and to the west of the
wetlands and low lying rural land.
Capel Coastal Strategy 2005
The
Capel
Coastal
Strategy
identified the issues and threats
affecting the coastal areas of the
Shire and provided management
actions to address these matters.
The need for the Strategy was
identified by recent increases in
population, development and use
of the Shire’s coastal areas.
The Strategy listed a number of
recommendations for Peppermint
Grove Beach, including:
“Prepare a detailed Foreshore
Implementation/Action Plan for
the Peppermint Grove area that
14 Peppermint Grove Beach Land Use Strategy
consolidates,
updates
and
provides
a
mechanism
for
ongoing management of the
foreshore,
based
on
the
Preliminary
Foreshore
Management Plan. The plan
should address as a minimum the
provision/need of access at the
main Peppermint Grove Beach,
the consideration of mechanisms
for the rationalisation of informal
access tracks between private
residences and Peppermint Grove
Beach, the layout and function of
Wave
Walk
and
ongoing
management of the area near the
Capel River Mouth.”
Shire of Capel
2.2.5 Town Planning Scheme No. 7
Gazetted in March 1998, Town
Planning Scheme No. 7 is the
primary
statutory
planning
instrument for guiding land use in
the Shire. The Scheme provides
a range of zones that define the
urban area of Peppermint Grove
Beach as residential in nature.
Peppermint
Grove
Beach
is
included in the low density
‘Residential R5/R10’ and ‘R12.5’
zone and ‘Special Use’ zones
pursuant to the Scheme map.
There are also a number of ‘Public
Purpose’
and
‘Recreation’
reserves within the current urban
area.
The Special Use zones provide
opportunities
for
a
local
commercial centre, community
services and short term holiday
accommodation on sites near the
entry to Peppermint Grove Beach.
The zoning of Lot 105 Peppermint
Grove Beach Road provides for a
number of possible uses including
caravan park, chalets, café and
convenience store.
Lot 319
Peppermint Grove Beach Road
includes opportunities for those
uses which are permitted (‘P’)
within the Town Centre zone of
the Scheme including shop, office
and lunch bar.
Figure 4
Town Planning Scheme No. 7 (extract)
Indian
Ocean
not to scale
Peppermint Grove Beach Land Use Strategy
15
Shire of Capel
2.2.6 Peppermint Grove Beach Management Plan 2010
This Plan comprises a foreshore
management plan for Peppermint
Grove
Beach.
Ongoing
development
and
population
growth,
combined
with
the
popularity of the beach during the
holiday
period,
has
placed
increased
pressures
on
the
foreshore from land use conflicts
and environmental degradation.
Coastal areas are dynamic and
unstable environments, and the
increasing demand for use of
coastal areas for recreation has
the potential to destabilise coastal
areas and cause serious damage.
The purpose of the Plan is to
identify the issues and threats,
determine the community values
for the area and provide specific
recommendations and actions to
assist
with
the
protection,
conservation
and
continued
recreational use of the study area
over a ten year time frame.
2.2.7
The
objectives
of
Management Plan are to:




the
Reduce land use conflicts
Encourage
sustainable
recreational land uses
Enhance
and
protect
conservation values
Enhance
community
understanding
of
the
environmental values of the
coast.
An implementation plan for the
ongoing management of the
Peppermint
Grove
Beach
foreshore is provided with a
framework to ensure coastal
management
is
adequately
catered for in future budgets.
The implementation plan includes
guiding principles related to
conservation,
recreation
and
social/community use, foreshore
management plans and a number
of recommendations and actions
in an implementation schedule.
Age-Friendly Communities 2010
In
response
to
its
ageing
population, the Shire sought to
identify how age-friendly it is,
what barriers to ageing exist and
how these can be addressed. The
project used focus groups to look
at several features of an agefriendly community.
The Age-Friendly Communities
report was published in 2010 and
a number of strategies were
adopted by Council to improve
facilities and outcomes for the
more senior members of the
community.
These include the
requirement
for
development
16 Peppermint Grove Beach Land Use Strategy
contributions to upgrade and/or
install new infrastructure and
services;
and
encouraging
developers to consider aged care
accommodation options which
offer a range of affordable
housing choices.
It was also recommended that
the Shire lobby the Public
Transport Authority and other
stakeholders
to
investigate
improved
public
transport
services,
and
undertake
a
community transport strategy to
investigate transport options for
older people.
Shire of Capel
2.2.8 Trails Master Plan 2009
The purpose of the Trails Master
Plan is to identify existing trails
and assist in forward planning for
the provision of new trails
throughout the Shire of Capel.
The Plan is intended to provide a
framework to direct the planning
of trails in the Shire to ensure
they are well planned, managed,
resourced,
promoted
and
maintained and, where practical,
linked to external trails networks
and wider regional trails. A Plan
indicating the proposed trails is
included at Appendix 1.
Recommended future trails which
relate to Peppermint Grove Beach
include Capel to Peppermint
Grove Beach - a pathway or trail
connection between Capel and
Peppermint Grove Beach.
An asphalt shared path or
limestone
trail
could
be
constructed
along
the
road
reserve through the Tuart Forest
National Park. The route would
undoubtedly be very attractive,
and parts would resemble the
Tuart Walk between Dalyellup
and Usher.
This is a lengthy connection, and
an expensive project. The needs
of people wanting to cycle or walk
between Peppermint Grove Beach
and Capel will need to be
carefully considered in light of
other trail/pathway projects in
the Shire.
2.2.9 Heritage Interpretation Plan 2007
The aim of the Interpretation Plan
is to identify places, stories and
objects of cultural and historic
significance so that they may be
conserved and interpreted for the
community, as well as to enhance
opportunities for tourism and
recreation.
The Plan provides the Shire and
the community with a guide to
where, how and why the heritage
and culture of the municipality
could be interpreted and is the
basis for future projects and
funding applications.
The recommendations for the
conservation, interpretation and
recognition of the Shire’s heritage
assets cannot succeed without
Peppermint Grove Beach Land Use Strategy
the ongoing support of the local
community
and
government
agencies.
The Plan recommends that a
number of interpretation signs be
placed in the beach/foreshore car
park to reflect the Shire’s coast.
The
interpretation
focus
is
identified as:






Aboriginal history and use of
the area.
Early settler families.
Capel River and jetty (sea
transportation).
Natural values and changes to
the landscape.
Recreation (beaches).
War and the coastline.
17
Shire of Capel
3.0
Key Issues
3.1 Demography
3.1.1 Resident Population
The estimated resident population
of the Shire of Capel was 14,906
in 2011 and 15,383 in 2012
according to the ABS.
This
indicates that the population of
the Shire has more than doubled
in the ten years since 2001. The
average annual growth rate
between 2001 and 2011 was
7.7%.
The average annual growth rate
of the Shire between 2006 and
2011 was 6.75%.
There were estimated to be 375
permanent
residents
in
Peppermint Grove Beach in 2006
and 390 in 2011. The relatively
low population in comparison to
the number of dwellings (319
dwellings in 2011) is related to
the high proportion of vacant
dwellings, presumably holiday
homes, in the locality.
Table
1
summarises
the
estimated resident population
change between 2001 and 2013.
Table 1
Estimated Resident Population 2001-2013
2001
2006
2011
2013
Shire of Capel
7,107
10,753
14,906
16,120
Average annual growth rate
3.5%
8.6%
6.75%
4.0%
Pep. Grove Beach
350
375
390
410
Source: ABS and Shire of Capel
In 2011, 50.9% of residents in
Peppermint Grove Beach were
male
and
49.1%
female
compared to the figures for the
Shire of 49.6% male and 50.4%
female, and for Australia of
49.4% male and 50.6% female.
18 Peppermint Grove Beach Land Use Strategy
According to the 2011 Census
2.8% of Peppermint Grove Beach
residents
were
indigenous
persons, compared with 2.25% in
the Shire of Capel, and 2.5% in
Australia.
Shire of Capel
3.1.2 Age Profile
The median age of residents in
Peppermint Grove Beach was 44
in 2011, which is much higher
than the Shire’s median age (34)
and Australia’s median age (37).
was
also
comparison
Australia.
slightly
to the
lower
in
Shire and
Peppermint Grove Beach has a
much
higher
proportion
of
persons aged over 50 (39%) in
comparison to the Shire (25.5%)
and Australia (32.3%).
Peppermint Grove Beach also
appears to have an ageing
population with the median age
increasing from 41 to 44 between
2006 and 2011.
Table 2 indicates the distribution
of the 2011 resident population
across six age groups and
compares
Peppermint
Grove
Beach with the Shire, Western
Australia and Australia.
It is
notable that Peppermint Grove
Beach has lower proportions of
children and a much higher
proportion of adults aged 50-64.
The proportion of children aged
0-14 in Peppermint Grove Beach
(16.7%) is much lower than in
the Shire (27.5%) and Australia
(19.3%).
The proportion of
young adults (10.2%) is lower in
comparison to the Shire (12.2%)
and Australia (13.3%).
The
proportion of adults aged 25-49
Table 2
Age Distribution 2011
Age Cohort
Median
Age
0-4
5-14
15-24
25-49
50-64
65+
Pep. Grove Beach
44
4.7%
12%
10.2%
34%
28.7%
10.3%
Shire of Capel
34
8.6%
18.9% 12.2% 35.8% 16.8%
7.7%
Western Australia
36
6.8%
12.9% 13.7% 36.2% 18.1%
12.3%
Australia
37
6.6%
12.7% 13.3% 35.1% 18.3%
14%
Source: ABS Census of Population and Housing, 2011.
Figure
5
illustrates
the
proportional age structures of
Peppermint Grove Beach, the
Shire and Australia based on
2011
Census
data.
The
comparison clearly highlights the
differences between Peppermint
Peppermint Grove Beach Land Use Strategy
Grove Beach and Australia in
relation to younger adults and
middle-aged adults.
It also
demonstrates the older age
profile in Peppermint Grove Beach
with a median age of 44
compared to 36 in Western
Australia and 37 in Australia.
19
Shire of Capel
Figure 5
Age Structure 2011
12%
Pep Grove Bch
10%
Capel Shire
Australia
8%
6%
4%
2%
85+
80-84
75-79
70-74
65-69
60-64
55-59
50-54
45-49
40-44
35-39
30-34
25-29
20-24
15-19
10-14
5-9
0-4
0%
Age
While it appears that Peppermint
Grove Beach has an ageing
population, changes in the Shire’s
age structure indicated in Figure
6
do
not
demonstrate
a
significant ageing trend.
Figure 6
Age Structure - Shire of Capel 1996-2011
12%
10%
1996
2001
8%
2006
2011
6%
4%
2%
Age
20 Peppermint Grove Beach Land Use Strategy
85+
80-84
75-79
70-74
65-69
60-64
55-59
50-54
45-49
40-44
35-39
30-34
25-29
20-24
15-19
10-14
5-9
0-4
0%
Shire of Capel
3.1.3
Education, Labour Force and Income
Table 3 indicates that Peppermint
Grove Beach comprises higher
proportions of people with higher
educational
qualifications
in
relation to both the Shire and
Australia.
The proportion of
qualified residents with higher
qualifications (diploma, bachelor
degree, graduate diploma, post-
graduate degree) was 58.6% in
Peppermint Grove Beach while
certificate
qualified
residents
comprised 37.1% of qualified
persons. It should be noted that
both the Shire and Australia had
a high proportion of persons who
inadequately
described
their
qualification.
Table 3
Level of Tertiary Education, 2011
(persons aged 15 and over with a qualification)
Peppermint
Grove Beach
Shire of Capel
Australia
Certificate
37.1%
45.9%
32.3%
Diploma
21.0%
14.6%
14.4%
Bachelor
25.7%
19.2%
24.1%
Graduate Diploma
5.7%
2.9%
3.1%
Post-graduate degree
6.2%
2.6%
6.5%
Not stated/
inadequately described
4.3%
14.8%
19.6%
Source: ABS.
According to Table 4 Peppermint
Grove Beach has a similar full
time workforce but less of the
labour force employed part time
in relation to both the Shire and
Australia.
There was a much
higher proportion of the labour
force away from work and a lower
unemployment rate in Peppermint
Grove Beach in 2011.
Table 4
Labour Force, 2011 (employed persons aged 15 years and over)
Employed full-time
(as a % of labour force)
Employed part-time
(as a % of labour force)
Away from work
Unemployed
Peppermint
Grove Beach
Shire of Capel
Australia
59.4%
59.9%
59.7%
26.1%
28.7%
28.7%
11.1%
3.4%
7.3%
4.0%
5.9%
5.6%
Source: ABS.
Peppermint Grove Beach Land Use Strategy
21
Shire of Capel
Table 5 indicates that Peppermint Grove Beach had higher proportions of
professionals, machinery operators and community/service workers
compared to both Australia and the Shire, while it had lower proportions
of managers, administration workers and sales workers.
Table 5
Occupation 2011 (employed persons aged 15 years and over)
Peppermint
Grove Beach
Shire of Capel
Professionals
27.8%
18.2%
21.3%
Technicians/trades workers
15.2%
19.3%
14.2%
Managers
10.1%
11.9%
12.9%
Admin. workers
10.6%
11.9%
14.7%
Labourers
9.8%
10.3%
9.4%
Machinery operators
9.6%
9.1%
6.6%
Sales workers
7.6%
8.6%
9.4%
Community/personal
service workers
10.6%
8.6%
9.7%
Australia
Source: ABS.
According to the 2011 Census,
Peppermint
Grove
Beach
residents had higher median
incomes than Australian residents
while Shire residents generally
also enjoyed higher incomes than
the
national
medians,
as
indicated in Table 6. The median
monthly housing loan repayment
is also much higher in the Shire.
Table 6
Income 2011 (persons aged 15 years and over)
Peppermint
Grove Beach
Shire of
Capel
Australia
$ 678
$ 664
$ 577
Median household income/week
$1,514
$1,628
$1,234
Median family income/week
$1,733
$1,783
$1,481
Median monthly housing loan repayment
$2,000
$1,993
$1,800
$300
$310
$285
Median personal income/week
Median weekly rent
Source: ABS.
3.1.4
Household Structure
Peppermint Grove Beach and the
Shire have higher proportions of
family households compared to
22 Peppermint Grove Beach Land Use Strategy
Australia
which
reflects
the
popularity of the area with
families. The regional preference
Shire of Capel
for
larger
lots
and
larger
detached dwellings compared to
the diversity of housing in cities
may partly explain the lower
proportion
of
lone
person
households in the Shire.
to the Shire and Australia. The
Shire
has
a
much
higher
proportion of couple families with
children, which likely reflects the
popularity of Dalyellup with young
families, while Peppermint Grove
Beach has a much higher
proportion of couple families
without children.
Table
7
indicates
the
characteristics
of
Peppermint
Grove Beach families in relation
Table 7
Family and Household Characteristics, 2011
Households
Family household
Lone person household
Group household
Peppermint
Grove Beach
Shire of
79.7%
18.2%
2.0%
84.1%
13.7%
2.2%
71.5%
24.3%
4.1%
29.2%
55.0%
15.8%
51.9%
35.0%
12.5%
44.6%
37.8%
15.9%
Family households
Couple families with children
Couple families without children
One parent families
Capel
Australia
Source: ABS
3.1.5
Country of Birth
In 2011 86.8% of Peppermint
Grove Beach residents were
Australian citizens compared to
84.9% of persons in Australia.
Table 8 indicates that almost
74% of residents were born in
Australia compared to 70% of
persons nationally.
Table 8
Country of Birth 2011
Peppermint
Grove Beach
Shire of Capel
Australia
Australia
73.7%
73.0%
69.8%
United Kingdom
10.15%
8.3%
5.1%
New Zealand
1.8%
2.7%
2.2%
USA
1.05%
0.3%
0.4%
South Africa
3.6%
3.9%
0.7%
Other countries
3.7%
5.7%
16.2%
Not stated
6.0%
6.1%
5.6%
Country of Birth
Source: ABS
Peppermint Grove Beach Land Use Strategy
23
Shire of Capel
Note: ABS Census data for small areas
ABS data is subjected to a confidentiality process before release.
This
confidentiality process is done to avoid releasing information that may allow for
identification of particular individuals, families or households, without impairing
the usefulness of the tables.
Care should be taken in analysing tables with cells containing small numbers and
no reliance should be placed on them.
Aside from the effects of the
confidentiality process, possible respondent and processing errors have greatest
relative impact on small numbers.
A technique has been developed to randomly adjust cell values. Random
adjustment of the data is considered to be the most satisfactory technique for
avoiding the release of identifiable Census data. When the technique is applied,
all cells are slightly adjusted to prevent any identifiable data being exposed.
These adjustments result in small introduced random errors however the
information value of the table as a whole is not impaired.
The totals and subtotals in tables are also subjected to small adjustments. These
adjustments include modifications to preserve additivity within tables. Although
each table of this kind is internally consistent, comparisons between tables which
contain similar data may show some minor discrepancies. In addition, the tables
at different geographic levels are adjusted independently, and tables at the
higher geographic level may not be equal to the sum of the tables for the
component geographic units.
It is not possible to determine which individual figures have been affected by
random error adjustments, but the small variance which may be associated with
derived totals can, for the most part, be ignored.
Source: ABS - ‘Census data confidentiality’ and ‘Randomisation’.
24 Peppermint Grove Beach Land Use Strategy
Shire of Capel
3.2 Physical Characteristics
3.2.1 Physiography
Peppermint
Grove
Beach
is
situated within the Swan Coastal
Plain geographic area. This Plain
lies between the Indian Ocean
coast and the Darling and
Whicher scarps. It is a low lying,
level
to
gently
undulating
formation of marine, alluvial and
aeolian sediments. It generally
comprises
relatively
infertile,
deep sandy soils along with
coastal
sand
dunes,
river
estuaries, and a number of
wetlands separated from the sea
by dunes.
A number of rivers cross the Plain
from east to west including the
Capel, Preston and Ludlow Rivers.
Many of the stream and wetland
systems have been modified to
drain wetlands and other low
lying land around Peppermint
Grove Beach in order to enable its
use for agriculture.
create a backdrop to the level
rural areas and wetlands to the
east. Inappropriate development
in these more prominent areas
will have a significant impact on
landscape values in the locality.
There a number of key factors
which influence the setting, urban
form and character of Peppermint
Grove Beach including the Indian
Ocean (Geographe Bay), coastal
wetlands and the Quindalup
dunes as described below.
Geographe Bay
The
marine
and
beach
environment
contributes
significantly to the landscape
character and cultural significance
of Peppermint Grove Beach.
The
residential
areas
of
Peppermint Grove Beach are
situated on vegetated dunes
immediately adjacent to the
coast.
These are known as
Quindalup
dunes
which
are
composed of grey to white
calcerous sands and are exposed
to erosion from storm surge and
prevailing winds.
The protection provided by Cape
Naturaliste from south-west swell
and waves along with the broad
and shallow nature of Geographe
Bay and near-shore reefs, results
in a relatively low energy
shoreline at Peppermint Grove
Beach. Although Geographe Bay
has a tidal range of around 1.2m,
the average daily range is only
0.5m, and nearly 0.3m of the tide
range is determined by seasonal
sea level fluctuations.
The land capability of Quindalup
dunes is generally low for
agriculture,
housing,
on-site
effluent
disposal
and
road
construction. The higher portions
of
the
system
visible
at
Peppermint Grove Beach and the
Capel
River
mouth
create
prominent landscape features and
Strong onshore winds from the
Indian Ocean largely contribute to
the creation of high wave
conditions in the area. Sustained
high winds are believed to occur
from a number of sources
including
dissipating
tropical
cyclones, consistent sea breezes,
and seasonal cold fronts.
Peppermint Grove Beach Land Use Strategy
25
Shire of Capel
Waves constantly change the
shape of the coastline as part of a
natural cycle of beach erosion
and accretion.
The winter
months are associated with a
large number of storms and
higher wave energy events which
results in increased shoreline
erosion where sand is deposited
offshore, often as a bar. During
the summer and autumn months
the
wave
energy
decreases
resulting in the movement of the
offshore sand back onto the
beach and the fore-dunes.
The WA Planning Commission has
accepted that the sea level for
the coast of WA will rise by 0.9
metres by the year 2100. Any
significant increase in relative sea
level or the frequency and
intensity of storm events may
lead to increased erosion of the
foreshore
environment
and
possible damage to property and
infrastructure.
Quindalup Dunes
The Quindalup parabolic dune
system comprises a relatively
narrow band of higher land
26 Peppermint Grove Beach Land Use Strategy
between the beach and inland
wetlands/winter-wet flats south of
the Capel River. They reach a
height
of
approximately
22
metres and comprise significant
remnant vegetation.
These
dunes have been developed for
conventional
low
density
residential land use apart from
the area immediately adjacent to
the beach which is reserved as
regional open space for the
purposes
of
recreation
and
foreshore management.
The
dunes
are
particularly
sensitive to the removal of
vegetation and will erode or blow
out quickly when dry sand is
exposed.
The western 60-100
metres of the dunes have been
progressively vested for foreshore
protection and recreation since
residential
development
commenced.
Unstable
dunes
have
been
rehabilitated
and
walkways
provided to define pedestrian
access to the beach. The foredune adjacent to the beach forms
a buffer which is generally
affected by only the more severe
storms.
Shire of Capel
Wetlands
Linear estuarine wetlands lie
behind
the
Quindalup
Dune
System parallel to the coast.
These wetlands are remnants of a
former estuarine system located
in a swale of the Spearwood
Dunes which has been partially
covered by the inland progression
of the Quindalup dunes.
Part of the Vasse-Wonnerup
wetland extends into the Shire of
Capel.
This and other coastal
wetlands near Peppermint Grove
Beach are examples of formerly
estuarine basins now functioning
as seasonal-brackish lakes.
They provide a habitat for a
number of native fauna species
and comprise important bird
breeding areas and transitional
areas for migratory birds. The
wetlands also provide significant
habitat and breeding areas for
mosquitoes.
Coastal wetlands and National Park in background © Daryl Jones, Ozaerial
Wetlands to the east of Peppermint Grove Beach
Peppermint Grove Beach Land Use Strategy
27
Shire of Capel
Capel River
The locality of Peppermint Grove
Beach is bounded to the north by
the Capel River and the River
mouth. The River itself is not a
significant component of the
visual character of Peppermint
Grove Beach due to intervening
vegetation
(Agonis
flexuosa
woodland) however it is a
valuable
environmental
and
landscape feature of the locality
and there is access to the River
environs via paths in the beach
and foreshore reserves.
Capel River mouth © Daryl Jones, Ozaerial
Tuart Forest National Park
The
narrow
strip
of
tuart
(Eucalyptus gomphocephala) forest
that links Capel and Busselton is
a
significant
landscape
and
environmental feature of the
locality.
The Tuart Forest National Park
near Peppermint Grove Beach
protects the largest remaining
pure forest of tuart in the world
and is over 2,000 hectares in
area. It also has the tallest and
largest specimens of tuart trees
on the Swan Coastal Plain.
The Park protects a large wild
population of the endangered
western ringtail possum. This is
largely because old tuart trees
contain many hollows, while the
dense
secondary
storey
of
peppermint supplies their major
28 Peppermint Grove Beach Land Use Strategy
source of food. The forest is also
home to the densest population
of
brushtail
possums
ever
recorded in the State.
Other
residents include the brush-tailed
phascogale, bush rat, kangaroo,
quenda, and many species of
birds of prey and nocturnal birds.
Shire of Capel
Rural areas
Much of the land to the east and
south of Peppermint Grove Beach
is characterised by winter wet
flats and drained pastures that
support
agricultural
uses
including grazing of beef and
dairy cattle.
Viticulture is also carried out
nearby on the Capel River flats on
soils which are deep, sandy and
well-drained, but low in nutrients.
3.2.2 Urban Form
The urban area of Peppermint
Grove Beach is confined to the
primary foredunes adjacent to
Geographe Bay and south of the
Capel River due to the low lying
nature of surrounding rural areas
to the east and south. This has
lead to an elongated urban form
centred on Hardey Terrace and
Peppermint
Grove
Terrace
between the foreshore to the
west and low lying, wetlands and
winter-wet pastures to the east.
Peppermint Grove Beach has only
one road access and egress via
Peppermint Grove Road which
results
in
the
urban
area
comprising a large cul-de-sac
system ultimately servicing over
500 dwellings. Peppermint Grove
Terrace and Hardey Terrace
service the majority of lots in
conjunction with a number of
small culs-de-sac and loop roads.
The Shire of Capel Land Use
Strategy 1999 indicates that the
extent of the urban area of
Peppermint
Grove
Beach
is
confined to the prominent dune
system bounded by the Capel
River to the north and the low
lying land to the east.
Oblique aerial photo of Peppermint Grove Beach © Daryl Jones, Ozaerial
Peppermint Grove Beach Land Use Strategy
29
Shire of Capel
Figure 7
Urban Form 2011
30 Peppermint Grove Beach Land Use Strategy
Shire of Capel
3.2.3 Housing
There were 319 dwellings in
Peppermint Grove Beach in mid
2011 and 52% of these were
vacant.
While all housing
comprises single dwellings at this
time, a significant diversity in
scale and design has developed
since the 1970s. The earlier fibro
beach shack/cottage with a low
roof profile has been replaced
since the 90s with conventional
Peppermint Grove Beach Land Use Strategy
brick homes and substantial twostorey dwellings which seek to
obtain views of the sea or rural
hinterland.
More recently, architect-designed
dwellings and holiday homes have
been established as landowners
take advantage of the coastal
location.
Some examples of
housing
form
which
has
developed over the past forty
years are included below.
31
Shire of Capel
3.3 Environmental Values
3.3.1 Vegetation
The majority of coastal land in
the locality has been cleared of
remnant vegetation mainly for
rural land uses but also for urban
development in Peppermint Grove
Beach.
Areas of coastal dune
vegetation remain however some
of the remaining vegetation has
been degraded as a result of
uncontrolled access and dune
blowouts.
The vegetation within the locality
comprises
the
Quindalup
vegetation complex and some
Karrakatta complex.
A dune
vegetation survey was conducted
in 2004 and a total of 35 vascular
plant families, 59 genera and 66
taxa (including 33 weeds) were
recorded – as listed in Table 9.
During a subsequent survey of
the dunes in 2011, five quadrats
were surveyed and a total of 24
vascular plant families, 38 genera
and 40 taxa were recorded
(including 18 weeds) - these are
listed at Appendix 2.
32 Peppermint Grove Beach Land Use Strategy
The existing natural vegetation
provides habitat for native fauna
species as well as feral species
such as rabbits. A number of
vegetated reserves have been
created within the residential
areas.
These reserves are
generally vested with the Shire as
reserves for public recreation and
foreshore management purposes.
The
coastal
reserves
have
generally
better
quality
vegetation. They are also wider
which means that they extend far
enough inland to include different
vegetation
communities
and
habitat areas.
These reserves
generally include WA peppermint
trees which provide important
habitat
for
the
threatened
western
ringtail
possum.
Protection of these reserves from
human disturbance (such as
unauthorised access and tracks,
removal of vegetation, spreading
weeds, and rubbish dumping) is a
priority
according
to
the
Peppermint
Grove
Beach
Management Plan.
Shire of Capel
Table 9
Plant Species surveyed in dunes at Peppermint Grove Beach, 2004
Species Name
Common Name
Location
Daucus glochidiatus
Native carrot
F bd S
Trachymene pilosa
Olearia axillaria
Native parsnip
Coastal daisy bush
F bd S
F bd S
Rhagodia baccata
Berry salt bush
F bd S
Isolepis nodosa
Lepidosperma gladiatum
Knotted Club Rush
Coastal sword sedge
BFS
B F bd S
Acanthocarpus pressii
Hibbertia cuniformis
Prickle lily
Cutleaf hibbertia
B F bd S
bd S
Leucopogon parvifloris
Pelargonium littorale
Coastal beard-heath
Pelargonium
bd S
bd
Scaevola nitida
Shining fanflower
F bd S
Conostylus aculeata
Acacia cochlearis
Prickly conostylis
Rigid wattle
bd S
B F bd S
Acacia cyclops
Agonis flexuosa
Coastal wattle
WA Peppermint tree
BF
F bd S
Caladenia latifolia
Pink orchid
bd
Hardenbergia comptoniana
Spinifex longifolius
Native wisteria
Beach spinifex
F bd S
BS
Spinifex hirsutus
Calandrinia brevipedata
Hairy spinifex
Short-stalked purslane
BF
F bd S
Calandrinia liniflora
Spyridium globosum
Parakeelya
Basket bush
F bs S
bd S
Acacia saligna
Golden wattle
bd
Eucalyptus gomphocephala
Jacksonia horrida
Tuart
Grey stinkwood
bd
F bd S
Kennedia prostrata
Diplolaena dampieri
Scarlet runner
Southern diplolaena
bd S
bd
Exocarpos sparteus
Broom ballart
bd
Anthocercis littorea
Alyxia buxifolia
Yellow tailflower
Dysentry bush
F bd S
B F bd S
Cakile maritima
Austrostipa compressa
Sea rocket
Spear grass
BF
F bd S
Austrostipa flavescens
Poa drummondiana
Coast spear grass
Knotted poa
F bd S
F bd S
Sporobolus virginicus
Marine couch
B
Location:
B Beach front
S Swales
F Foredunes
bd Back dunes
Source: 2004 dune vegetation survey conducted by the Peppermint Grove Beach
Association, Green Corps and the Bunbury Naturalist Club (as compiled
by Rae McPherson in 2008).
Note:
Results of 2011 dune vegetation survey included at Appendix 2.
Peppermint Grove Beach Land Use Strategy
33
Shire of Capel
3.3.2 Native Fauna
The large lots and low density of
development in Peppermint Grove
Beach has allowed for the
retention of natural vegetation
and habitat. In particular large,
vegetated
foreshore
reserves
have
been
established
and
protected from clearing, although
the
ad
hoc
creation
of
unauthorised access tracks to the
beach is impacting some portions
of the foreshore.
Small
birds,
reptiles
and
mammals have been able to take
advantage of this environment
and the slow rate of development
to survive in the remaining
habitat.
A search for fauna was conducted
on the DEC Threatened Fauna
database during formulation of
the Peppermint Grove Beach
Management Plan.
Threatened
and Priority Fauna in the locality
includes the Chuditch,, Brushtailed
Phascogale,
Western
Ringtail Possum, Forest Redtailed Black Cockatoo, Whitetailed Black Cockatoo, Carpet
Python, Pouched Lamprey, Black
Bittern, Western Brush Wallaby,
Western False Pipistrelle, Waterrat and Quenda.
The King’s
Skink, Shingleback Skink, Dugite
Western shingleback skink
34 Peppermint Grove Beach Land Use Strategy
and Tiger Snake are also evident
in the residential areas.
Many of the above species have
been identified by community
members as animals they have
seen in the locality. Anecdotal
evidence also indicates that the
Capel
River
and
adjacent
wetlands
are
an
important
breeding area for Black swans
and other itinerant water birds.
The presence of threatened fauna
is particularly important in terms
of
habitat
conservation,
rehabilitation and the prevention
of disturbance to vegetation.
Introduced rabbits, cats, dogs,
foxes, mice and black rats are
likely to be relatively common.
Rabbit tracks are particularly
common over the dunes and on
the beach and there is evidence
of grazing on dune vegetation.
Rabbits have significant impacts
on the vegetation condition and
contribute to dune erosion and
vegetation disturbance.
Dogs are permitted in dog
exercise areas on the beach.
Domestic and feral cats are also
present and community members
indicate that they notice cats
roaming at night which is
significant issue for small birds,
mammals and reptiles.
King’s skink
Western ringtail possum
Shire of Capel
WAPC
Planning
Bulletin
64
indicates that Peppermint Grove
Beach has a moderate to low risk
of acid sulphate soils occurring
within 3 metres of the soil surface
and that the beach has no known
risk.
metals, they can impact the
environment
and
hinder
or
prevent development.
Some
environmental impacts caused by
acid
sulphate
soils
include
vegetation loss, surface and
groundwater degradation, loss of
aquatic fauna and modification of
aquatic communities.
Acid sulphate soils contain iron
sulphides which are benign unless
the soil is disturbed and exposed
to the air when they react with
oxygen to produce acid. As the
presence of acid sulphate soils
can lead to an increase in acidity
and result in the release of heavy
The DEC has detailed guidelines
on assessing, mitigating and
managing acid sulphate soils
where they have the potential to
be disturbed. These guidelines
are required to be followed where
necessary when subdivision and
development is carried out.
3.3.3 Acid Sulphate Soils
3.4 Community Infrastructure
3.4.1 Community Facilities
Telecommunications services are
available including optic fibre and
Telstra cable.
The proposed
‘NBN’ will bring faster broadband
access to the locality.
A number of car parks and beach
access facilities are provided in or
adjacent
to
the
foreshore
including at the end of Hardey
Terrace, in Peppermint Grove
Road, Wave Walk and Barndi
Walk.
Toilets are provided
adjacent
to
the
beach
at
Peppermint Grove Road and
Wave Walk.
The Peppermint
Grove Beach Community Centre
is located in Hayfield Drive
adjacent to the volunteer Bush
Fire Brigade shed.
Playgrounds
are
provided
adjacent to the beach at the end
of Peppermint Grove Road and at
the Community Centre (which
also has a basketball/tennis
Peppermint Grove Beach Land Use Strategy
court).
Significant areas of
natural vegetation are protected
in reserves, particularly along the
foreshore.
In early 2013 a draft Path
Implementation Plan is being
prepared for consideration by
Council
which
recommends
improvement to the local path
network. The following paths are
recommended for construction
between 2014 and 2018:




Maali Way to Peppermint
Grove Terrace - 2.1m wide
shared use path.
Lookout Point - formalise trail
to Mt Stirling lookout.
Sand Dune Court – 2.1m path
connecting the existing path to
Peppermint Grove Terrace.
Wave Walk – Peppermint
Grove Terrace to the beach
car park.
35
Shire of Capel
Table 10
Schedule of Reserves and Facilities
Location
Reserve No.
Description
Reserve Purpose
Peppermint
Grove
Terrace
Hardey
Terrace
35483
Vegetated area north of local
centre site (1.77ha)
Public Recreation
28996
Steep, vegetated conservation
area between Peppermint Grove
Rd & Gwenyod Way (0.2878ha)
Public Recreation
Geographe
Bay
Foreshore
44233
26842
34334
43604
41219
44897
47811
Regional Open Space.
Linear foreshore reserve with
vegetated dunes and beach
access paths.
Playground, shelter, toilets and
barbeque adjacent to Peppermint
Grove Road.
Part vested for
Public Recreation
and Foreshore
Management.
Part unallocated
Crown land (UCL).
Hayfield
Drive
47820
Level, cleared reserve.
Community Centre, playground,
car park, basketball/tennis court,
BFB shed (1.86ha)
Public Recreation
36 Peppermint Grove Beach Land Use Strategy
Shire of Capel
3.4.2 Power and Gas
3.4.3 Sewer
Older
residential
areas
are
serviced
by
high
voltage
overhead
power
while
new
development has underground
services.
Street lighting is
provided in all residential areas.
There is currently no natural gas
supply infrastructure within the
locality.
There is no sewerage reticulation
in the locality therefore effluent
disposal
for
residential
development is accommodated
on-site either via conventional or
alternative liquid waste disposal
systems. Options for recycling of
grey water are available however
the extent to which this has been
implemented is unknown.
3.4.3 Water Supply
More
significant
development
would need to connect to the
existing system in Capel or
provide an approved effluent
treatment system on site. The
use of on-site effluent treatment
is likely to be more cost effective
and
would
also
enable
implementation
of
water
reclamation
and
re-cycling
technology.
The Water Corporation provides a
reticulated
water
service
to
Peppermint Grove Beach. Water
is sourced from an artesian bore
and pressure is achieved from
water storage tanks at the top of
Periwinkle Place.
There is some concern from
residents that water pressure is
low in some areas which may
indicate that upgrading of the
system will be required at some
point to ensure an adequate level
of
service
in
the
future,
particularly
as
additional
development occurs.
Peppermint Grove Beach Land Use Strategy
37
Shire of Capel
3.5 Transport and Traffic
There is only one road access
point to Peppermint Grove Beach
via Peppermint Grove Road.
Hardey Terrace and Peppermint
Grove Terrace then provide
access to the south and north via
long cul-de-sac systems.
There was no regular bus service
to Peppermint Grove Beach in
early 2012 although a school bus
operates to Capel Primary.
Table 11 indicates that the
average number of vehicle trips
into and out of Peppermint Grove
Beach just prior to the holiday
period in 2011 (5-11 December)
averaged 892 per day, peaking at
928 on Friday.
During a peak holiday period
(Christmas/New
Year
2011)
traffic increased by 50% to an
average daily trip count of 1,327,
peaking at 1,446 on Friday 30
December.
Table 10 below
summarises the average vehicle
trip counts for these periods.
Table 11
Vehicle Counts
Average Daily Vehicle Trip Count
(Peppermint Grove Road between Hayfield Drive and Ludlow Road North)
Non-holiday/shoulder period
5 - 11 December 2011
Monday – Friday
Saturday/Sunday
892
886
906
Variation
806 - 928
901 - 910
1,327
1,355
1,256
Variation
1,190-1,446
1,086-1,426
Holiday period
26 December 2011 - 1 January 2012
Monday – Friday
Saturday/Sunday
Source: Shire of Capel
Significant
traffic
implications
related to the single road access
via Peppermint Grove Road may
arise as development of dwellings
continues
and
occupancy
increases.
The long term
dwelling estimate of 520 may
ultimately generate over 3,000
vehicle trips per day which will
have significant implications for
the intersection of Peppermint
Grove Road and Ludlow North
Road.
Current
research
of
trip
generation rates indicates that
38 Peppermint Grove Beach Land Use Strategy
the average number of vehicle
trips per day in relation to
conventional detached housing
varies from 5 to over 10. For the
purpose of estimating traffic
generation in Peppermint Grove
Beach a rate of 6 to 8 trips per
day per dwelling has been
assumed. In view of the absence
of employment, shopping, school
and other urban facilities in
Peppermint Grove Beach itself,
the number of vehicle trips can
be assumed to be in the upper
range of the estimates as
residents travel to these services.
Shire of Capel
also need to be considered i.e.
where
90%
occupancy
is
achieved, there may be as many
as 3,700 vehicle trips per day
from all dwellings, including
holiday
homes
and
holiday
rentals, at peak times.
The outcome is that, at full
development and assuming 20%
of dwellings vacant, there may be
between 2,500 and 3,300 vehicle
trips per day, with the majority of
these using Peppermint Grove
and Ludlow North Roads to Capel,
Busselton and Bunbury. Table 12
below
summarises
estimated
vehicle trip generation from
dwellings at various occupancy
rates.
It is recommended that a Traffic
Strategy
be
formulated
to
determine any upgrading of roads
or
intersections,
or
other
mechanisms
which
may
be
required to address the roads and
traffic level of service and safety
as the population increases.
Traffic generation from tourist
day trips and holiday homes will
Table 12
Estimated Vehicle Trip Generation from Dwellings
Peppermint Grove Beach
Year
Estimated
Dwelling
Yield
2016
360
2021
405
2026
450
2031+
(ultimate
development)
520
Assumed
average
vehicle
trips/day
55%
80%
90%
6
1,188
1,728
1,944
8
1,584
2,304
2,592
6
1,336
1,944
2,187
8
1,782
2,592
2,916
6
1,485
2,160
2,430
8
1,980
2,880
3,240
6
1,716
2,496
2,808
8
2,288
3,328
3,744
Total daily vehicle trips
by dwelling occupancy
Source: Shire of Capel
Peppermint Grove Beach Land Use Strategy
39
Shire of Capel
3.6 Economy
There
was
no
identifiable
commercial
floor
space
in
Peppermint Grove Beach in early
2012.
Anecdotal
evidence
indicates that a number of small
businesses and home occupations
operate from dwellings including
a
mobile
computer
service,
mobile mechanic, prepared food
delivery
and
part
time
consultants.
Lot 105 Peppermint Grove Road
previously
operated
as
the
‘Peppermint Grove Holiday Park’
but has not operated for some
years.
The Shire supports
development of the site for
caravan
park
and
holiday
accommodation
purposes.
Accordingly, the land has been
included in the ‘Special Use
(Caravan Park, Chalets, Shop)’
zone which provides for a number
of uses to be considered including
caravan park, chalets, café and
convenience store.
The ‘Special Use (Various)’ zoning
of Lot 319 Peppermint Grove
Road provides opportunities for a
local
commercial
centre,
community services and other
appropriate uses on Peppermint
Grove Road near the entry to
Peppermint Grove Beach.
The
Scheme provides applicants with
the opportunity to seek approval
for uses which are permitted
within the ‘Town Centre’ zone of
the Scheme including shop,
office, café, lunch bar and
medical consulting rooms. It is
anticipated that the site will
eventually be developed as a
multi-purpose local centre with an
innovative approach to providing
services to a small population
which
experiences
seasonal
increases during holiday periods.
The ongoing construction of
dwellings in the settlement is
anticipated
to
provide
employment for builders and
tradesman for many years. The
average dwelling construction
rate between 2001 and 2011 was
ten per year and it is conceivable
that construction could continue
at that rate for many years in
view of the current vacant lot
stock and additional, approved
subdivision outcomes.
© Ozaerial
40 Peppermint Grove Beach Land Use Strategy
Shire of Capel
3.7 Urban Growth
3.7.1
Dwellings
According to Shire data there
were 81 dwellings in Peppermint
Grove Beach in June 1989 and
158 in June 1996.
This had
increased to 221 in 2001 and 319
dwellings in 2011 according to
Census data.
Table 13 indicates the number of
dwellings in Peppermint Grove
Beach between 2001 and 2011
according to the ABS.
This
indicates construction of an
average of ten dwellings per year
during this time.
The total number of dwellings in
the Shire in 2011 was 5,447
according to Census data. Table
13 indicates that dwelling growth
within the Shire has been
significant with 1,643 dwellings
constructed over the five year
period between 2006 and 2011.
Table 13
Dwellings 2001-2011
Number of dwellings
June 2001
June 2006
June 2011
Pep. Grove Beach
average annual increase
Shire of Capel
average annual increase
221
276
319
-
11
9
2,548
3,804
5,447
-
251
329
Source: ABS Census data
3.7.2
Dwelling Occupancy
Table 14 includes the average
household size (of occupied
dwellings). In Peppermint Grove
Beach the average household size
was 2.3 persons per dwelling
compared to 2.9 in the Shire.
The average occupancy rate for
all dwellings in 2011 was 1.2
compared to 2.7 in the Shire
reflecting
the
high
dwelling
vacancy rate (52%). The rate in
2006 can be estimated to be
approximately
1.35
which
indicates a falling occupancy rate
possibly related to an increase in
Peppermint Grove Beach Land Use Strategy
the number of ‘holiday homes’
established in that time.
The occupancy
rate
of
all
dwellings is very low however this
is not necessarily unusual in a
locality that comprises a high
proportion of holiday homes. The
fact that 52% of dwellings were
vacant when the Census was
counted in 2011 (compared to
10.7% in Australia) indicates that
the average occupancy rate of all
dwellings must be lower than in
more
conventional
residential
areas.
41
Shire of Capel
Table 14
Dwellings 2011
All private dwellings
Unoccupied private dwellings
(excluding non-classifiable dwellings)
Occupancy rate - all dwellings
Average household size
Resident Population
Pep. Grove
Beach
Shire of
Capel
Australia
319
5,447
9,117,033
52.1%
11.1%
10.7%
1.2
2.3
390
2.7
2.9
14,906
2.4
2.6
21,507,717
Source: ABS and Shire of Capel.
Note: Average household size relates to the number of persons usually resident in
occupied private dwellings determined from the Census count, while the occupancy rate is
the ratio of all dwellings, including vacant dwellings, to the population.
3.7.2
Residential Land Supply
There were 319 dwellings in
Peppermint Grove Beach in 2011
according to the Census.
There were 460 residential lots
counted on cadastral plans,
indicating
approximately
140
vacant lots. Estimating future lot
production relies on the potential
for future lot releases.
Due
to
the
physiographic
constraints evident, the Shire’s
1999
Land
Use
Strategy
estimated
an
ultimate
lot
potential of less than 550.
Perusal of subdivision outcomes
for the remaining residential
areas confirms a future potential
yield of approximately 520 lots as
indicated in Table 15.
Table 15
Peppermint Grove Beach Residential Lot Potential
Residential lot production 2011+
Category
Current lot yield 1
Medium-long term 2
Timeframe
Lot yield
current
460
5-20 years
60
Total
Source:
520
Shire of Capel
1. Count of cadastral lots June 2011.
2. Estimate of additional lot yield from current subdivision plans, 2013.
42 Peppermint Grove Beach Land Use Strategy
Shire of Capel
Table 16 provides estimates of
total residential lots and dwellings
in Peppermint Grove Beach from
2011
to
2031
based
on
incremental subdivision over this
time,
along
with
associated
population estimates.
It is assumed that average
occupancy (of all dwellings) will
increase over time from 1.2
persons per dwelling in 2011 to
around 1.8 persons per dwelling
ultimately.
Table 16
Projected Lot Production and Population
Year
Residential
lot estimate
Dwelling
estimate
Occupancy
rate of all
dwellings2
Estimated
Resident
Population
Average
annual
growth rate
2011
2016
2021
2026
2031
2031+
4601
4803
5003
5203
520
520
3194
3605
4055
4505
5005
520
1.2
1.3
1.4
1.5
1.6
1.8
390
470
570
675
800
940
0.8%
3.8%
3.9%
3.5%
3.5%
-
Note: some estimates have been rounded.
Assumptions:
1. Lot yield counted from cadastral plans, 2011.
2. The occupancy rate is anticipated to increase over time as seasonally vacant
‘holiday homes’ are more permanently occupied and proportion of families
with children increases.
3. Anticipated production of 20 lots every five years until 2026.
4. Dwelling count per 2011 Census.
5. Average of less than 10 dwellings per year constructed from 2011 to 2031.
Source: Shire of Capel
3.7.3
Population Projections
3.7.3.1 Local Projections
Resident population projections
prepared by the Shire are
generally based on assumptions
related to lot production, dwelling
construction
and
average
occupancy of dwellings.
The projections for 2016 to 2031
are based on the assumptions
stated in Table 16 relating to
ongoing urban development. The
settlement’s dwelling occupancy
rate is anticipated to increase
Peppermint Grove Beach Land Use Strategy
over time due to an increase in
the rate of occupied dwellings and
the number of ‘families with
children’ households.
In the
scenario
where
long-term
occupancy of dwellings reaches
1.8 persons per dwelling and
assuming 20% of dwellings are
vacant, the ultimate population
could be around 750-800.
The
draft
‘Greater
Bunbury
Strategy’ assumes occupancy of
2.5
persons
per
dwelling
throughout the region, which
43
Shire of Capel
would
indicate
an
ultimate
population of 1,300. However, in
view
of
the
likely
ageing
population and the holiday home
focus, the rate of occupancy is
unlikely to reach as high as 2.5
unless the proportion of vacant
homes substantially reduces at
some point.
occupation during peak periods
which is likely to increase the
‘service population’ considerably
around
holiday
periods.
Assuming that the majority of
dwellings are occupied during
peak times it is possible that the
service
population
could
be
double the estimated resident
population indicated in Tables 16
and 17.
It is difficult to accurately predict
the impact of holiday home
Table 17
Resident Population Projections 2006-2031
Census Year
2006
2011
2016
2021
2026
2031
375
390
470
570
675
800
10,753
Department of Planningb
14,9061
14,400
18,8002
18,000
22,3003
21,800
25,6004
25,900
28,7205
-
Dept of Health and Ageingc
14,092
17,720
21,481
25,357
-
Pep. Grove Bcha
Shire of Capel
Shire of Capela
Source:
a. Shire of Capel (refer Table 16 for assumptions related to Pep. Grove Beach).
b. Band ‘C’ projections. Western Australia Tomorrow, WAPC, 2012.
c. Customised projections prepared for the Australian Government Dept of
Health and Ageing by the ABS in 2008. These are not official ABS data.
Assumptions for Shire projections:
1. ABS, 2011 Estimated Resident Population.
2. Average growth of 260 dwellings/year 2011-2016
+ aged persons accommodation (320 persons).
3. Average growth of 260 dwellings/year 2016-2021
4. Average growth of 250 dwellings/year 2021-2026
5. Average growth of 240 dwellings/year 2026-2031
Note:
at 2.75 persons/dwelling
at 2.7 persons/dwelling.
at 2.65 persons/dwelling.
at 2.6 persons/dwelling.
The projections prepared by the Shire reflect possible population outcomes related
to the stated assumptions only. Dwelling estimates and average occupancy rates
may change over time and a higher or lower population may be achieved.
3.7.3.2 Shire Projections
Projections for the Shire are
based
on
continued
urban
development
and
consistent
growth in accordance with the
assumptions stated in Table 17.
44 Peppermint Grove Beach Land Use Strategy
It is assumed that the Shire’s
dwelling occupancy rate will
reduce over time mainly due to
the
trend
to
an
ageing
population, but tempered by an
increase in family households.
Shire of Capel
3.7.3.3 Projected Age Profile
In 2012 the WAPC reviewed and
published
‘Western
Australia
Tomorrow’, a population report
and forecast profile for local
government areas including the
Shire of Capel. Projections were
based on five simulations which
resulted in a Shire population
range of 22,100 (Band A) to
30,600 (Band E) in 2026. Table
17 includes the median data for
Band C which yielded 25,900
persons in 2026.
The
2011
age
profile
for
Peppermint Grove Beach indicates
slightly lower proportions of
people aged under 15 (16.7%)
and lower proportions of people
aged 15 to 49 (44.2%) in
comparison to Australia (19.3%
and 48.4%). The proportion of
residents aged 65 or over was
only 10.3% compared to 14% in
Australia.
Table 18 indicates the likely age
profile in 2026 assuming higher
proportions of younger people
and slightly lower proportions of
people aged over 50. In 2026
there is estimated to be around
122 younger residents aged 0-14
(18% of the population), 297
people aged 15-49 and around
256 aged over 50.
Notwithstanding the difficulties of
projecting population change in
high growth areas over strategic
time frames, it would be difficult
to argue that the growth of the
Shire over the next 10-20 years
will
not
be
significant.
Accordingly
the
estimates
summarised in Table 17 indicate
a population range of 25,357 to
25,900 in 2026. This indicates an
average annual growth rate of
around 4.5% between 2006 and
2026
which
is
considered
achievable in view of the average
annual growth rate of 6.75%
between 2006 and 2011 and the
outcomes
contained
in
WA
Tomorrow.
The medium-term ageing trend is
anticipated to be ameliorated by
an increase in family households
(reflecting the current trend in
the Shire). However ageing may
still be a characteristic of the
resident population in view of the
likely trend for retirees to relocate
to Peppermint Grove Beach.
Table 18
Projected Age Profile 2026 - Peppermint Grove Beach
Age Group
2011
ERP 390
2026
ERP 675
0-14
65
(16.7%)
122
(18%)
15-49
172
(44.2%)
297
(44%)
50-64
112
(28.7%)
175
(26%)
65+
40
(10.3%)
81
(12%)
Source: Shire of Capel and ABS
Peppermint Grove Beach Land Use Strategy
45
Shire of Capel
4.0
Community Consultation
A key component of the Strategy
will
include
comprehensive
consultation with the community
and
relevant
stakeholders.
Formulation of a consultation
process that reflects community
views and aspirations is critical to
achieving meaningful outcomes.
4.1 Community Needs Assessment 2003
The South West Population Health
Unit and Edith Cowan University,
in conjunction with the Shire of
Capel and the Peppermint Grove
Beach Community Association
sought community input in early
2003 to inform the timely
development of facilities and
services in Peppermint Grove
Beach. Information was gathered
by a comprehensive community
survey and consultation with
individuals and agencies.
The results of the assessment
indicated that lifestyle was valued
in relation to the small-scale,
relatively safe, quiet and relaxed
atmosphere of the locality. The
environment was found to be
walkable and cyclable with few
vehicles
and
minimal
infrastructure and development.
Outcomes that the community
supported included:




Conserving, maintaining and
protecting
the
natural
environment
Tree planting and revegetation
Maintaining current vehicle
access provisions
Upgrading road and traffic
management infrastructure
46 Peppermint Grove Beach Land Use Strategy





Management plan for the
Capel Cut
Management plan for the
Stirling wetlands
Protection
and
improved
management of Tuart Forest
National Park
Prevention
of
commercial
fishing in Geographe Bay
Prohibiting
personal
water
craft in near-shore waters.
There was general consensus in
relation to restrictions on the
scale and extent of the built
environment
regarding
permanent resident and tourist
population
growth.
Some
divergent opinion emerged in
relation to the nature and scale of
development
and
potential
impacts
on
the
sense
of
community.
Preferred additional facilities and
services included a community
centre, sporting facilities, walk
trails, general store, café and
postal service.
Some of the recommendations
have already been implemented
including
provision
of
a
community
centre
and
playground, additional walk trails
and dune/vegetation protection.
Shire of Capel
Recommendations in relation to
Shire responsibilities included:








review
of
sporting
and
recreation needs within ten
years.
safety and use audit to
determine priorities for new
paths.
consideration
of
a
road
upgrade
programme
and
impacts of increasing traffic
arising from growth.
landscape enhancement in
public areas.
improvements
to
infrastructure and streetscape
at end of Peppermint Grove
Beach Road.
increase Ranger presence and
signage re: traffic issues.
4.2
The assessment concluded that
the locality is valued by residents,
in
particular
the
natural
environment. There is a desire to
maintain the current quality of life
and there was an awareness of
possible tensions between this
and the likely impacts of future
development
and
population
increase.
Community Workshop 2012
This
stage
involves
direct
consultation with the community
including Councillors, landowners,
residents,
local
community
groups, government agencies,
Shire staff and other members of
the community.
Successful
engagement with the community
at an early stage in the planning
process is essential in achieving
guidance and direction in relation
to the broader issues as well as
receiving some more detailed
outcomes
regarding
specific
issues that directly impact on the
community.
The purpose of this stage is to:


review
vehicle
access
provisions in the context of
increasing traffic.
consider restrictions on use of
personal water craft along
Peppermint Grove Beach.
investigate cost-benefits of a
dual
use
path
from
Peppermint Grove Beach to
Capel.
Apprise the community of the
issues including providing a
strategic
overview
and
presentation
of
relevant
information including broad
opportunities and constraints.
Peppermint Grove Beach Land Use Strategy

Establish the values, concerns
and visions of the community
in terms of their needs and
aspirations.
In February/March 2012 residents
and landowners were invited to a
workshop forum in relation to
community planning.
A community workshop was held
on 28 March 2012 at the
Peppermint
Grove
Beach
Community Centre. The issues of
community facilities, strategic
community planning and future
land use and development were
canvassed.
Over twenty people attended the
workshop including staff and
Councillors.
Fifteen attendees
were residents of Peppermint
Grove Beach or the locality.
47
Shire of Capel
Three main areas of input were
sought from the community in
relation to town planning issues.
The following key comments were
recorded as outcomes of the
workshop:
Characteristics that are valued
and considered important:






CONCERNS















Sleepy village character
Seaside hamlet
Ocean/coast views
Quiet, uncrowded
Connected community
Relative isolation
Natural environment
Native flora and fauna
Access to beach
Capel River
Boating and fishing
Diverse built form.
Issues that are
require attention:


VALUES













Retain conservation areas and
natural character
Retain current urban area – no
further
zoning
(limit
development
to
retain
environment and character)
Small scale local centre –
convenience store, café but no
liquor store
Prepared to travel to other
services
Affordable, small-scale tourist
accommodation
–
caravan
park/camping area
Work from home - cottage
industries
Improved access to boating
facilities
Improvements to community
centre and parks
Path system/coastal track
Cycle track to Capel (refer
Appendix 1)
Emergency escape route.
ASPIRATIONS
evident
and
Urban expansion
Single entry road
No alternative egress
Fire risk
Access to boat launching
Absence of caravan park
Vehicles on beach
Over-height dwellings
Control of vermin in dunes
Potential
for
inappropriate
commercial development
Traffic management (speeding
vehicles)
Bus service
Services
(water
supply,
internet, nearby roads).
The community aspirations and
draft actions that were supported
can be summarised as:







VISION
Preferred
long-term
urban
form/character and facilities:
48 Peppermint Grove Beach Land Use Strategy

Improve the community centre to
meet the needs of the increasing
population.
Expand equestrian facilities and
opportunities for participation
(rural area).
Promote to ‘drive in/drive out’
and FIFO workers.
Continue to support volunteers
and investigate affordable public
liability insurance.
Review fire safety practices and
procedures.
Increase and encourage fire
awareness in the community.
Develop design guidelines for
future development, including
height
restrictions
and
the
planting of native species.
Restrict the extent of residential
development to the currently
zoned areas.
Shire of Capel




















Increase Police presence and
promote community policing.
Manage rabbits and kangaroos
and protect dune areas.
Protect Mount Stirling, Capel
River and the adjacent wetlands.
Manage beach use with the
priorities on traffic management
and dune damage.
Lobby for and encourage the
provision of small-scale holiday
accommodation, including the
redevelopment of the caravan
park.
Investigate the establishment of
camping facilities in the Tuart
Forrest.
Promote
and
support
the
establishment
of
a
local
convenience store.
Re-establish the shop at the
caravan park as a cafe and
delicatessen, but preclude a
bottle shop.
Encourage diversity in relation to
home occupation, holiday homes
etc.
Encourage home based business
and cottage industry.
Encourage Bed and Breakfast
operators.
Enhance the quality and range of
community facilities.
Improve the community hall to
meet
needs
of
increasing
population.
Enhance the quality and range of
active and passive POS.
Continue and accelerate the
provision of footpaths and trails
including a DUP connection to
Capel.
Install a series of bike racks at
key community nodes.
Improve the Peppermint Grove
Road surface condition, widen
bridges and reduce traffic speed.
Lobby for expanded broadband.
Lobby
the
government
for
improved public transport.
Improve the community bus
service and review the activity at
the current bus stop in terms of
use and safety.
Peppermint Grove Beach Land Use Strategy

Determine the capacity to meet
increased population (residential
and peak periods) in relation to
water supply.
Some of these aspirations are
addressed in this Strategy where
they relate to land use and
development, while others will be
addressed in the draft Community
Strategic Plan being prepared
during 2013.
The workshop provided evidence
of a high degree of interest in the
future of Peppermint Grove Beach
and a well developed sense of
community.
The input and views provided by
the community can be broadly
summarised as positive and
generally unified. It is clear that
people appreciate the locality for
its current values and will seek to
retain this character and spirit.
The principal outcomes that need
to be considered in terms of land
use planning and development
can be summarised as:
1. the current urban area should
not be
expanded – no
additional urban zoning or
subdivision.
2. the
natural
environment
should be conserved and
protected.
3. the existing visual and built
character should be retained
and enhanced.
4. the holiday park site should be
developed
with
affordable
visitor
accommodation
including a caravan park.
5. a shop and cafe could be
developed on the commercial
site if considered viable.
49
Shire of Capel
4.3 Formal Consultation
This
stage
involved
formal
advertising of the draft Strategy
to
the
community
and
consideration of submissions by
the Council.
The draft Strategy was formally
advertised from 28 March to 17
May 2013.
The consultation
process
in
relation
to
the
advertising
of
the
Strategy
reflected the requirements of
clause 8.9 of the Scheme relating
to the adoption of Town Planning
Policies.
This included sending
landowners and residents notice
of the draft Strategy and a
consultation feedback sheet to
assist in making a submission.
the initiatives outlined in the draft
Strategy with the exception of the
holiday rentals issue.
Outcomes of Consultation
The outcomes of the consultation
process
indicate
significant
support for the initiatives outlined
in the draft Strategy including:

91.5% of respondents agree
that residential subdivision
and development should be
limited to the currently urban
zoned area of the settlement.

90% believe that design
guidelines should be prepared
to
assist
in
retaining
community agreed character
outcomes
in
future
development.

93% agree that a traffic
strategy
could
assist
in
identifying and addressing any
road
safety
and
traffic
management issues that may
arise
as
the
population
increases.

81.4%
support
the
management
and,
where
necessary, closure of informal
paths to the beach across the
vegetated foreshore reserve,
while
15%
oppose
this
outcome.

80%
support
appropriate
redevelopment of the caravan
park although this proportion
would be somewhat higher
except
for
significant
opposition to a liquor store at
the site.
Formal consultation included:




Referral of the draft Strategy
to the community including
residents, ratepayers, relevant
government
and
servicing
agencies,
and
other
stakeholders for comment.
Notification in the local media
over at least two weeks.
Notices at the Shire office and
library/s, and on the Shire’s
web page.
Copy of draft Strategy on the
Shire’s web page.
In
addition
to
the
local
community, including residents of
Peppermint
Grove
Beach, a
number of stakeholders were
invited to comment as part of the
consultation process, including
government agencies.
A total of 71 submissions were
received including 59 feedback
sheets.
The
submissions
indicated significant support for
50 Peppermint Grove Beach Land Use Strategy
Shire of Capel
Following consultation the matter
was considered by Council and
modifications made in response
to issues raised in submissions.
Holiday Rentals
three sites currently mapped
within the Strategy area including
Minninup, Capel River, two beach
burials and a beach reburial. The
reburial site should be honoured
and protected and an assessment
made of the likely impacts of any
activity within the area.
Around 76% of respondents
supported the short term renting
of houses for holiday purposes
while 17 % were opposed to this
due to the impacts on their
amenity.
Those that did not
support this outcome highlight
significant issues in terms of antisocial behaviour created directly
by visitors in holiday rentals.
Land use and development within
the settlement will be required to
address
matters
relating
to
heritage assessment and the
protection
of
cultural
sites
pursuant
to
the
Aboriginal
Heritage Act 1972.
In order to enable some holiday
accommodation to be considered,
the Shire will investigate the
inclusion of a use class in the
planning scheme relating to
holiday accommodation premises
and
a
mechanism
for
the
appropriate ongoing management
and/or
licensing
of
these
premises so that impacts on
residential
amenity
can
be
addressed. The investigation will
need to consider the implications
of permitting holiday rentals and
their ongoing management in
terms of potential anti-social
behaviour and noise etc.
The Department of Environment
and Conservation is concerned
about the proximity of future
development to the adjacent
conservation category wetland
and the required 50m buffer;
contamination in Precinct 4; acid
sulphate soils and foreshore
management.
In addition, the manner in which
the Shire will enforce compliance
with Scheme provisions relating
to holiday rentals and subsequent
development approvals/licences
(and the resources required to
enable adequate policing) will be
critical considerations.
Indigenous Heritage
The Department of Indigenous
Affairs highlights that there are
Peppermint Grove Beach Land Use Strategy
Environment
A strategy has been included in
Precinct 2 to the effect that the
subdivision is to be encouraged to
include a perimeter road between
the lots and the rural/wetland
areas
or
other
effective
mechanism,
and
Precinct
4
includes a strategy confirming the
need for resolution of any
contamination on site and the
need for development to consider
the adjacent wetland.
Precincts 2 and 4 now include a
strategy highlighting the need for
investigation of potential acid
sulphate soils and an additional
‘Foreshore’ precinct has been
included along with relevant
strategies relating to the ongoing
rehabilitation of the foreshore.
51
Shire of Capel
5.0
Land Use Strategy
5.1 Opportunities and Constraints
Road Access
Wetlands
Peppermint Grove Beach has only
one vehicle access and egress via
Peppermint Grove Road.
This
results
in
the
urban
area
comprising a large cul-de-sac
system ultimately servicing over
500 dwellings.
This is not
considered
an
appropriate
outcome
in terms
of best
planning practice and would not
be supported in contemporary
planning unless an alternative
road access was provided.
In
view of increasing traffic volumes,
particularly at peak holiday times,
the
management
of
vehicle
access via a single road will
become a critical issue.
The
settlement
is
almost
completely surrounded by water
or wetlands. The Capel River to
the north, the Indian Ocean to
the west, and wetland areas to
the east and south-east comprise
significant
constraints
to
urban/residential land use.
Coastal Processes
Coastal areas are dynamic and
unstable environments, and the
increasing demand for use of
coastal areas for housing and
recreation has the potential to
destabilise foreshore areas and
create conflict. The location of
the
settlement
on
primary
foredunes and the implication of
this for potential impacts from
climate change/sea level rise is
identified as a constraint to
development. Fortunately, much
of the existing development has
achieved adequate setbacks from
the beach which, if the remnant
vegetation on the dunes can be
retained, can provide a buffer to
coastal erosion processes.
52 Peppermint Grove Beach Land Use Strategy
The risk of exposure to the Ross
River Virus vector posed by
mosquito breeding in adjacent
wetlands is a health issue which
also constrains the location and
design of development. It is not
considered
appropriate
to
establish new residential areas
unless the risk posed by mosquito
habitat is either very low or able
to be effectively managed over
strategic time frames.
Fire
The issue of fire risk from
remnant
vegetation
in
the
foreshore and other reserves
comprises a management issue
which requires ongoing attention.
Ongoing fire hazard planning,
including the preparation of Fire
Management
Plans
where
necessary is required to address
this risk.
Land Resources
The Peppermint Grove Beach
settlement has
very
limited
resources of land which is
Shire of Capel
considered capable of urban
development i.e. the Quindalup
dunes between the foreshore and
the wetlands. It is also apparent
that the opportunities for urban
development have been identified
and largely acted on at this time.
It is estimated that almost 90%
of the ultimate residential lot
potential
has
already
been
subdivided and the remaining lot
yield is the subject of plans that
show a number of lots, including
a grouped dwelling site, on the
connection of Hayfield Drive to
Peppermint Grove Terrace, along
with approximately 14 lots at the
northern end of Peppermint
Grove Terrace.
5.2 Planning Recommendations
There is some consensus in the
community
that
the
future
development of Peppermint Grove
Beach should be limited to the
currently urban zoned areas and
that traffic management and
safety may become an issue at
some
point
in
the
future.
Accordingly,
the
Strategy
supports
two
general
recommendations as follows:
Recommendation A1:
Future
subdivision
and
development is to be limited to
the identified Precincts and the
relevant outcomes identified in
the
Shire
of
Capel
Local
Planning
Scheme
and
the
Peppermint Grove Beach Land
Use Strategy.
Recommendation A2:
A Traffic Strategy is to be
formulated to determine any
upgrading
of
roads
or
intersections,
or
other
mechanisms which may be
necessary to address the
roads and traffic level of
service and safety as the
population increases.
The
Strategy
also
identifies
specific
recommendations
reflecting current and proposed
land
use
and
development
Peppermint Grove Beach Land Use Strategy
outcomes
Precincts:
Precinct
Precinct
Precinct
Precinct
Precinct
1
2
3
4
5
in
-
five
Planning
Residential
Future Residential
Local Business
Holiday Park
Foreshore.
The land adjacent to the existing
settlement is not included in
these Precincts as it is considered
to
be
beach,
wetland,
conservation area, or rural/
agricultural land, and is not
considered suitable for future
urban
development
for
the
purpose
of
the
Strategy.
Accordingly, the Shire will not
consider proposals for urban or
residential development outside
the identified Precincts.
The land adjacent to the east of
Precinct 1 will remain in the
‘Rural’ zone pursuant to the
Scheme, including the rural land
north of the proposed extension
of Hayfield Drive (Precinct 2)
which will remain available for
rural and heritage purposes.
The five Precincts and current
zoning outcomes are indicated on
Figure 11 - ‘Peppermint Grove
Beach Structure Plan’.
53
Shire of Capel
5.2.1 Precinct 1 - Residential
Precinct 1 includes the majority of
the Peppermint Grove Beach
urban
area
centred
on
Peppermint Grove Terrace and
Hardey Terrace which is currently
zoned
and
developed
for
residential purposes.
In June
2011 the Precinct comprised
around 460 residential lots and
319 dwellings (approximately 140
vacant lots).
Objectives

Support the community in
retaining the quiet, seaside
village
character
of
Peppermint Grove Beach.

Maintain and encourage an
acceptable level of residential
amenity in relation to roads,
parks, reserves, streetscapes
and built form.
Strategies
1.1 Subdivision
shall
be
generally in accordance with
an adopted Local Structure
Plan prepared pursuant to
the Town Planning Scheme
and/or an approved plan of
subdivision
–
further
subdivision of residential lots
will not be supported unless
in accordance with the
Residential
Design
Code
applying to the land.
54 Peppermint Grove Beach Land Use Strategy
1.2 Investigate the need for
design guidelines for future
development,
including
height restrictions and the
planting of native species.
1.3 Improve dual use path and
pedestrian path connectivity
within
the
Precinct,
particularly to the beach,
recreation
areas
and
community focal nodes.
1.4 Incorporate mechanisms to
ensure that management of
mosquito
habitat
and
breeding areas is addressed
in the design and ongoing
management
of
urban
drainage systems.
1.5 Investigate the inclusion of a
use class in the town
planning scheme relating to
holiday
accommodation
premises in the Residential
zone, and a mechanism for
the
appropriate
ongoing
management
and/or
licensing of these premises
so
that
impacts
on
residential amenity can be
addressed;
including
the
introduction of appropriate
fees or rates to reflect the
Shire’s costs in administering
the use.
Shire of Capel
5.2.2 Precinct 2 – Future Residential
While the majority of Peppermint
Grove Beach is developed in
terms of residential subdivision,
there are two areas which have
yet to be completed.
The land along the extension of
Hayfield Drive connecting north to
Peppermint Grove Terrace is
available for additional residential
subdivision and development.
An area at the northern end of
Peppermint Grove Terrace has an
approved subdivision of eight lots
which have yet to be created.
Also, Lot 77 Hardey Terrace
(4,090m2)
may
have
some
subdivision potential according to
the current ‘R12.5’ Residential
Design Coding.
These areas are already zoned
‘Residential’ and comprise the last
of the land in the settlement that
is largely cleared and sufficiently
elevated above wetland areas to
the east, and therefore suitable
for residential subdivision. These
locations are able to achieve a
minimum 50 metre buffer to the
boundary of the adjacent EPP
wetland.
Objectives


Limit the further development
of Peppermint Grove Beach to
low
density
residential
outcomes
consistent
with
those areas already zoned
‘Residential’ and identified on
adopted
structure
plans
and/or approved subdivision
plans.
Ensure achievement of a high
level of residential amenity in
relation to the development of
Peppermint Grove Beach Land Use Strategy
roads, reserves, streetscapes,
landscapes and built form in
the Precinct.

Address and manage any
health or risk issues including
the management of mosquito
and midge breeding sites.
Strategies
2.1 Subdivision of the land shall
be generally in accordance
with
an
adopted
Local
Structure
Plan
prepared
pursuant
to
the
Town
Planning Scheme and/or an
approved plan of subdivision.
Minor modification of an
adopted Local Structure Plan
may be approved by the
Shire
subject
to
the
modification being consistent
with the Peppermint Grove
Beach Land Use Strategy
and the objectives of the
Scheme.
2.2 The subdivision design of the
land shall be encouraged to
include a perimeter road
between the lots and the
rural/wetland areas, or other
effective mechanisms are to
be incorporated into the
subdivision
outcomes
to
address the delineation of
the lot boundaries and the
interface with rural land
and/or the wetland buffer
where necessary.
2.3 Dual
use
paths
and
pedestrian paths are to be
provided by the developer(s)
to
ensure
adequate
connectivity to the local
network.
55
Shire of Capel
2.4 Subdivision and development
is to address mosquito
breeding sites - development
proposals are to incorporate
mechanisms to ensure that
management of mosquito
breeding areas is addressed
in the design and ongoing
management
of
urban
drainage
systems
and
wetlands on site.
2.5 A Fire Management Plan may
be required as a condition of
subdivision to address the
management
of
any
identified fire risk.
Figure 8
Precinct 2 – Future Residential
56 Peppermint Grove Beach Land Use Strategy
2.6 Scheme amendments may
be required to adjust the
Bunbury Region Scheme and
Town Planning Scheme No. 7
to
reflect
ultimate
subdivision and development
outcomes.
2.7 The
potential
for
acid
sulphate soils on the land
shall be investigated and
resolved
prior
to
development.
2.8 Subdivision is required to
address heritage assessment
and the protection of cultural
sites in accordance with the
relevant legislation.
Shire of Capel
5.2.3 Precinct 3 – Local Business
The Special Use (‘Various’) zoning
of Lot 319 (portion of Lot 252)
Peppermint Grove Road provides
opportunities for local shopping,
community services and other
appropriate uses on Peppermint
Grove Road near the entry to
Peppermint Grove Beach.
The Scheme provides applicants
with the opportunity to seek
approval of those uses which are
permitted
within
the
‘Town
Centre’ zone pursuant to the
Scheme including shop, office,
café and lunch bar.
It is anticipated that the site will
eventually be developed as a
multi-purpose local centre with an
innovative approach to providing
services to a small, seasonally
fluctuating population.
Objectives

Provide opportunities for the
provision of shopping and
community facilities at an
appropriate scale.

Ensure that development of
the land reflects the objectives
of the Scheme in providing for
shopping and other outcomes
that
benefit
the
local
community.
Strategies
3.1 Provide for the development
of innovative and sustainable
shopping and community
facilities
on
the
land
consistent
with
Town
Planning Scheme objectives.
Peppermint Grove Beach Land Use Strategy
3.2 Development of the land
shall be in accordance with
an adopted Development
Guide
Plan
prepared
pursuant
to
the
Town
Planning Scheme.
Minor
modification of an adopted
Development
Guide
Plan
may be approved by the
Shire
subject
to
the
modification being consistent
with the objectives of the
Scheme and the Land Use
Strategy.
3.3 The Development Guide Plan
shall have regard to traffic
management, parking and
access management, service
vehicle
access,
fire
management
and
streetscape values, and shall
address the issues of access
to, and interface with, the
adjoining public open space
reserve.
3.4 Subject to the provision of
clear
justification
and
adequate
controls
being
incorporated
into
the
Development
Guide
Plan
relating to the coordination
of development, the Shire
will consider subdivision of
the land into two lots.
3.5 Prior to the approval of
development
a
detailed
Landscape Plan shall be
prepared
to
address
sustainable
landscaping
proposals for the site in
accordance with the Shire’s
Urban Landscape Strategy.
57
Shire of Capel
3.6 Prior to the approval of
development, the Shire may
require the preparation of
‘design guidelines’ (reflecting
the principles of the ‘Visual
Landscape
Planning
in
Western Australia’ manual)
to
outline
how
the
development
is
to
be
addressed in terms of design
Figure 9
Precinct 3 - Local Centre Site
58 Peppermint Grove Beach Land Use Strategy
themes and coordination of
staging.
3.7 Development proposals are
to address the provision of
dual use paths which provide
for
connectivity
to
community focal nodes and
the existing network.
Shire of Capel
5.2.4 Precinct 4 – Holiday Park
Precinct 4 relates to the northern
portion of Pt Lot 105 Peppermint
Grove Road (11.187ha) which has
previously been operated as the
‘Peppermint Grove Holiday Park’
and was closed for redevelopment
some years ago.
The Special Use zoning of the
land provides for a number of
uses to be considered including
caravan park, chalets, café and
convenience store. Appendix 4 of
the Scheme includes a number of
conditions which establish the
requirements and standards for
development of the site in
accordance with Development
Plan No. 04290P-03.
Due to the topography and the
proximity
of
the
nearby
Peppermint Grove Beach and
foreshore area, the site is ideally
located in the lee of the
Quindalup dunes for development
of a caravan park and associated
facilities.
A Scheme Amendment may be
required to rezone the southern
portion of Pt Lot 105 to ‘Rural’ in
view of the Scheme requirement
to limit holiday park development
to 35% of the site area.
Figure 10
Precinct 4 – Pt Lot 105 comprising Holiday Park Site
Holiday
Park
Site
Pt Lot 105
Peppermint Grove Beach Land Use Strategy
59
Shire of Capel
Objectives

Provide for the development of
short-term
holiday
accommodation including a
caravan park.

Ensure that the site is
developed at an appropriate
scale and that the character of
the locality is reflected in
development outcomes.
Strategies
4.1 Development of the land
shall be in accordance with
an adopted Development
Plan or Development Guide
Plan prepared pursuant to
the Town Planning Scheme.
Minor modification of an
adopted Development Plan
or Development Guide Plan
may be approved by the
Shire
subject
to
the
modification being consistent
with the objectives of the
Scheme.
4.2 Land uses which may be
considered on the land are
those identified in Appendix
4 of the Scheme and include
Caravan Park, Chalets, Café
Manager’s Residence, Art &
Craft Sales, Overnight Units
and Convenience Store.
4.3 The liquor store use class
associated with the caravan
park is to be reconsidered in
any review of the Scheme in
relation to the site.
4.4 Development of the land for
tourist
and
holiday
accommodation
purposes
shall include a ‘Caravan Park’
as a permanent component
of the development.
60 Peppermint Grove Beach Land Use Strategy
4.5 The development of Pt Lot
105 for the permitted uses,
other than Rural Use, shall
be limited to 35% of the lot
area.
4.6 The Development Guide Plan
shall have regard to traffic
management, parking and
access management, service
vehicle
access,
fire
management
and
streetscape values (in terms
of the site’s location at the
entry point to Peppermint
Grove Beach).
4.7 The development proponent
is to establish that the fill
levels
related
to
any
development proposal will
provide
adequate
flood
protection and that storm
water can be adequately
contained on-site to the
satisfaction of the Shire and
the Department of Water.
4.8 The effluent disposal system
for the development is to be
designed, constructed and
maintained
to
the
specification and satisfaction
of
the
Shire,
the
Environmental
Protection
Authority and the Health
Department
of
Western
Australia.
4.9 A
Mosquito
Management
Plan for the site is to be
prepared by the proponent
and implemented to the
satisfaction of the Shire development proposals are
to incorporate mechanisms
to ensure that management
of mosquito habitat and
breeding sites is addressed
in the design and ongoing
Shire of Capel
management
of
drainage systems.
urban
Planning
in
Western
Australia’ manual in terms
of the location, siting and
design of land use and
development.
The Shire
may
require
the
preparation
of
‘design
guidelines’ to outline how
different elements of the
development are to be
addressed in terms of
design themes, landscaping
and visual impact.
4.10 A detailed Landscape Plan
shall
be
prepared
to
address
sustainable
landscaping proposals for
the site in accordance with
the
Shire’s
Urban
Landscape Strategy.
4.11
Development
proposals
shall identify vegetated
buffers at the interface
with surrounding rural and
residential areas.
4.12
A Fire Management Plan
may be required as a
condition of development
to address the ongoing
management
of
any
identified fire risk.
4.13
Prior to the approval of
development, the Shire
may
require
the
preparation of a ‘Staging
Plan’
to
indicate
how
subsequent
stages
of
development are to be
coordinated and managed.
4.14
Development of the site is
to reflect the principles of
the
‘Visual
Landscape
4.15
Development proposals are
to address the provision of
dual use paths which
provide for connectivity to
the
foreshore
along
Peppermint Grove Road
and to the existing path
network in the locality.
4.16 Any contamination of the
caravan park site and any
acid sulphate soils shall be
investigated and resolved
prior to development.
4.17 Development shall address
the adjacent wetland in
terms of development and
design outcomes.
Source: www.rs.realcommercial.com.au
Peppermint Grove Beach Land Use Strategy
61
Shire of Capel
5.2.5 Precinct 5 – Foreshore
Precinct 5 includes the existing
foreshore conservation reserves,
recreation
reserves
and
community
purpose
areas
between the beach and the
developed residential areas.
Strategies
Ongoing
development
and
population growth, combined with
the popularity of the beach during
the holiday period, has placed
increased
pressures
on
the
foreshore from land use conflicts
and environmental degradation.
5.2 Ensure
the
ongoing
conservation and integrity of
the foreshore dunes and the
beach
environment
generally.
The impacts of informal access
tracks across the vegetated
dunes and feral rabbits require
ongoing management to address
erosion and vegetation removal.
Objective
Conserve,
maintain
and
rehabilitate the foreshore dunes,
remnant vegetation and other
natural areas within the Precinct.
62 Peppermint Grove Beach Land Use Strategy
5.1 Improve pedestrian path
connectivity to the beach,
recreation
areas
and
community focal nodes.
5.3 Manage
and,
where
necessary, control access to
the beach via informal tracks
across
the
vegetated
foreshore.
5.4 Address
the
ongoing
management
of
any
identified fire risk on the
foreshore.
5.5 Implement
the
relevant
remaining actions of the
Peppermint Grove Beach
Management Plan subject to
available funding.
Shire of Capel
5.3 Implementation
The Peppermint Grove Beach
Land Use Strategy comprises a
planning framework that will
guide
the
planning
and
development of the Peppermint
Grove Beach over strategic time
frames.
The Strategy has been adopted
as a town planning policy
pursuant to Clause 8.9 of the
Shire of Capel Town Planning
Scheme No. 7, and will be
implemented accordingly.
Consultation with community and
external
agencies
has
been
carried out in relation to the
Strategy.
Implementation of the Strategy
relies on an ongoing commitment
of
resources,
including
operational budgets. A range of
actions are identified in the
Schedule of Recommendations
and Actions below. These actions
should be included in the Shire’s
business planning deliberations as
appropriate.
The agreed Strategy outcomes
have been adopted to assist in
strategic
planning
and
the
development of forward and
annual budgets.
For example,
some
of
the
recommended
actions will have a budget
implication
which
is
being
addressed by other processes
e.g.
path
and
foreshore
improvements. Others will need
to be considered separately by
Council e.g. Traffic Strategy.
In some circumstances, actions
may need to be modified,
64 Peppermint Grove Beach Land Use Strategy
removed or expanded over time
in response to changing needs.
Any substantial changes which
vary from the priorities listed in
the Strategy should only occur
following review and assessment.
In some cases actions are likely
to
be
most
effectively
implemented as a result of
partnerships with other agencies
and/or the community.
Following
adoption
of
the
Strategy by Council as a planning
policy, it was referred to the WA
Planning Commission with a
request for endorsement.
The
Strategy is now used as a guide
to the future sustainable land
use, subdivision and development
in the locality.
Implementation
will
be
undertaken consistent with the
adopted
Schedule
of
Recommendations and Actions.
The priorities assigned to each
recommendation are indicative
only. Priorities can be reviewed
as required to take into account
availability of funding and other
resources,
or
to
reflect
subsequent Council decisions.
In view of the adopted Strategy
outcomes
(limited
future
development opportunities) it is
considered that there does not
need to be a specific time frame
for review of the Strategy. It is
considered
that
any
minor
departure from the Strategy in
terms of Precincts 3 and 4 can be
addressed
on
the
relevant
Development Guide Plans.
Shire of Capel
Peppermint Grove Beach Land Use Strategy
Schedule of Recommendations and Actions
Strategic Priorities have the following intent:
H
M
L
O
High Priority (commence within 2 years)
Medium Priority (action in 2-5 years)
Lower Priority (action in 5+ years)
Ongoing (requires continuous consideration and action)
Strategic Priorities have been applied on the basis of current and future requirements
determined at the time of adoption of the Strategy and may change with review of
circumstances, in response to other community or organisational priorities, and/or in
response to the availability of resources and funding.
Responsibility for implementation:
EO
PD
CM
CS
Engineering & Operational Services
Planning & Development Services
Community Services
Corporate Services
Strategy/Action
No.
A1
Future subdivision and development is to be limited to the identified
Precincts and relevant outcomes identified in the Shire of Capel Local
Planning Scheme and the Peppermint Grove Beach Land Use Strategy.
A Traffic Strategy is to be formulated to determine any upgrading of
roads or intersections, or other mechanisms which may be necessary
to address the roads and traffic level of service and safety as the
population increases.
A2
Strategic
Priority
Action
by
O
PD
M
EO
O
PD
M
PD
O
EO
O
EO
H
PD
Precinct 1
1.1
1.2
1.3
1.4
1.5
Subdivision shall be generally in accordance with an adopted Local
Structure Plan prepared pursuant to the Town Planning Scheme and/or
an approved plan of subdivision – further subdivision of residential lots
will not be supported unless in accordance with the Residential Design
Code applying to the land.
Investigate the need for design guidelines for future development,
including height restrictions and the planting of native species.
Improve dual use path and pedestrian path connectivity within the
Precinct, particularly to the beach, recreation areas and community
focal nodes.
Incorporate mechanisms to ensure that management of mosquito
habitat and breeding areas is addressed in the design and ongoing
management of urban drainage systems.
Investigate the inclusion of a use class in the town planning scheme
relating to holiday accommodation premises in the Residential zone,
and a mechanism for the appropriate ongoing management and/or
licensing of these premises so that impacts on residential amenity can
be addressed; including the introduction of appropriate fees or rates to
reflect the Shire’s costs in administering the use.
Peppermint Grove Beach Land Use Strategy
65
Shire of Capel
No.
Strategy/Action
Strategic
Priority
Action
by
O
PD
O
PD
O
EO
O
EO
O
PD
L
PD
O
PD/EO
O
PD
O
PD
O
PD
O
PD
O
PD
O
PD
O
PD
O
EO
Precinct 2
2.1
2.2
2.3
2.4
2.5
2.6
2.7
2.8
Subdivision of the land shall be generally in accordance with an
adopted Local Structure Plan prepared pursuant to the Town Planning
Scheme and/or an approved plan of subdivision. Minor modification of
an adopted Local Structure Plan may be approved by the Shire subject
to the modification being consistent with the Peppermint Grove Beach
Land Use Strategy and the objectives of the Scheme.
The subdivision design of the land shall be encouraged to include a
perimeter road between the lots and the rural/wetland areas, or other
effective mechanisms are to be incorporated into the subdivision
outcomes to address the delineation of the lot boundaries and the
interface with rural land and/or the wetland buffer where necessary.
Dual use paths and pedestrian paths are to be provided by the
developer(s) to ensure adequate connectivity to the local network.
Subdivision and development is to address mosquito breeding sites development proposals are to incorporate mechanisms to ensure that
management of mosquito breeding areas is addressed in the design
and ongoing management of urban drainage systems and wetlands on
site.
A Fire Management Plan may be required as a condition of subdivision
to address the management of any identified fire risk.
Scheme amendments may be required to adjust the Bunbury Region
Scheme and Town Planning Scheme No. 7 to reflect ultimate
subdivision and development outcomes.
The potential for acid sulphate soils on the land shall be investigated
and resolved prior to development.
Subdivision is required to address heritage assessment and the
protection of cultural sites in accordance with the relevant legislation.
Precinct 3
3.1
3.2
3.3
3.4
3.5
3.6
3.7
Provide for the development of innovative and sustainable shopping
and community facilities on the land consistent with Town Planning
Scheme objectives.
Development of the land shall be in accordance with an adopted
Development Guide Plan prepared pursuant to the Scheme. Minor
modification of an adopted Development Guide Plan may be approved
by the Shire subject to the modification being consistent with the
objectives of the Scheme and the Land Use Strategy.
The Development Guide Plan shall have regard to traffic management,
parking and access management, service vehicle access, fire
management and streetscape values, and shall address the issues of
access to, and interface with, the adjoining public open space reserve.
Subject to the provision of clear justification and adequate controls
being incorporated into the Development Guide Plan relating to the
coordination of development, the Shire will consider subdivision of the
land into two lots.
Prior to the approval of development a detailed Landscape Plan shall
be prepared to address sustainable landscaping proposals for the site
in accordance with the Shire’s Urban Landscape Strategy.
Prior to the approval of development, the Shire may require the
preparation of ‘design guidelines’ (reflecting the principles of the
‘Visual Landscape Planning in Western Australia’ manual) to outline
how the development is to be addressed in terms of design themes
and coordination of staging.
Development proposals are to address the provision of dual use paths
which provide for connectivity to community focal nodes and the
existing network.
66 Peppermint Grove Beach Land Use Strategy
Shire of Capel
Precinct 4
No.
Strategy/Action
4.1
Development of the land shall be in accordance with an adopted
Development Plan or Development Guide Plan prepared pursuant to
the Town Planning Scheme.
Minor modification of an adopted
Development Plan or Development Guide Plan may be approved by the
Shire subject to the modification being consistent with the objectives
of the Scheme.
Land uses which may be considered on the land are those identified in
Appendix 4 of the Scheme and include Caravan Park, Chalets, Café
Manager’s Residence, Art and Craft Sales, Overnight Units and
Convenience Store.
The liquor store use class associated with the caravan park is to be
reconsidered in any review of the Scheme in relation to the site.
Development of the land for holiday/tourist/visitor accommodation
shall include a ‘Caravan Park’ as a permanent component of the
development.
The development of Pt Lot 105 for the permitted uses, other than Rural
Use, shall be limited to 35% of the lot area.
The Development Guide Plan shall have regard to traffic management,
parking and access management, service vehicle access, fire
management and streetscape values (in terms of the site’s location at
the entry point to Peppermint Grove Beach).
The development proponent is to establish that the fill levels related to
any development proposal will provide adequate flood protection and
that storm water can be adequately contained on-site to the
satisfaction of the Shire and the Department of Water.
The effluent disposal system for the development is to be designed,
constructed and maintained to the specification and satisfaction of the
Shire, the Environmental Protection Authority and the Health
Department of Western Australia.
A Mosquito Management Plan is to be prepared by the proponent and
implemented to the satisfaction of the Shire - development proposals
are to incorporate mechanisms to ensure that management of
mosquito habitat and breeding areas is addressed in the design and
ongoing management of urban drainage systems.
A detailed Landscape Plan shall be prepared to address sustainable
landscaping proposals for the site in accordance with the Shire’s Urban
Landscape Strategy.
Development proposals shall identify vegetated buffers at the interface
with surrounding rural and residential areas.
A Fire Management Plan may be required as a condition of
development to address the ongoing management of any identified fire
risk.
Prior to the approval of development, the Shire may require the
preparation of a ‘Staging Plan’ to indicate how subsequent stages of
development are to be coordinated and managed.
Development of the site is to reflect the principles of the ‘Visual
Landscape Planning in Western Australia’ manual in terms of the
location, siting and design of land use and development. The Shire
may require the preparation of ‘design guidelines’ to outline how
different elements of the development are to be addressed in terms of
design themes, landscaping and visual impact.
Development proposals are to address the provision of dual use paths
which provide for connectivity to the foreshore along Peppermint Grove
Road and to the existing path network in the locality.
Any contamination of the caravan park site and any acid sulphate soils
shall be investigated and resolved prior to development.
Development shall address the adjacent wetland in terms of
development and design outcomes.
4.2
4.3
4.4
4.5
4.6
4.7
4.8
4.9
4.10
4.11
4.12
4.13
4.14
4.15
4.16
4.17
Peppermint Grove Beach Land Use Strategy
Strategic
Priority
Action
by
O
PD
O
PD
O
PD
O
PD
O
PD
O
PD
O
EO
O
EO
O
PD
O
PD
O
PD
O
PD
O
PD
O
PD
O
EO
O
EO
O
PD
67
Shire of Capel
Precinct 5
No. Strategy/Action
5.1
5.2
5.3
5.4
5.5
Improve pedestrian path connectivity to the beach, recreation areas
and community focal nodes.
Ensure the ongoing conservation and integrity of the foreshore dunes
and the beach environment generally.
Manage and, where necessary, control access to the beach via informal
tracks across the vegetated foreshore.
Address the ongoing management of any identified fire risk on the
foreshore.
Implement the relevant remaining actions of the Peppermint Grove
Beach Management Plan subject to available funding.
68 Peppermint Grove Beach Land Use Strategy
Strategic
Priority
Action
by
M
EO
O
EO
O
EO
H
EO
O
PD/EO
Shire of Capel
Appendices
Peppermint Grove Beach Land Use Strategy
69
Shire of Capel
Appendix 1
Extract of Trails Master Plan
Peppermint Grove Beach to Capel Trail
70 Peppermint Grove Beach Land Use Strategy
Shire of Capel
Appendix 2
Peppermint Grove Beach
Plant Taxa recorded during 2011 survey of dunes
Peppermint Grove Beach Land Use Strategy
71
Shire of Capel
Note: Five permanent quadrats were established in the dunes with
three placed in the area fenced by the Shire in 2010. Two of those
within the fenced area had seedlings planted in 2010 and the other
was placed where no plantings had occurred. Two additional
quadrats were established outside of the fenced areas. A total of
40 taxa were recorded from the five quadrats as listed above, of
which 18 were weeds. None of the taxa are listed as Threatened
or Priority Species by the Department of Environment and
Conservation (2012a).
The conclusions are based on field surveys carried out in five
specific quadrats over a limited period of time and are therefore
merely indicative of the environmental condition of the quadrats at
the time of the survey in 2011.
Source: Monitoring of Rehabilitation undertaken by the Shire of
Capel at Peppermint Grove Beach.
Prepared by E. Bennett/
Peppermint Grove Beach Community Association, January 2012.
72 Peppermint Grove Beach Land Use Strategy
Shire of Capel
Appendix 3
References
‘Belton Taylforth’ for Shire of Capel, 2005. Capel Coastal Strategy.
Bennett, E. and Peppermint Grove Beach Community Association, 2012. Monitoring
of Rehabilitation undertaken by the Shire of Capel at Peppermint Grove Beach.
Department of Environment and Conservation web page, 2011.
www.dec.wa.gov.au
‘Land Insights’ for Shire of Capel, 2010. Peppermint Grove Beach Management
Plan.
Peppermint Grove Beach Association, 2005. Dune Survey – Peppermint Grove
Beach.
Shire of Capel, 1999. Capel Shire Land Use Strategy.
Shire of Capel, 2012. Shire of Capel Local Profile 2012.
Stone, G. and Bryans, T., 2003. Peppermint Grove Beach Community Needs
Assessment.
Western Australian Planning Commission and Department of Planning - web page,
2012. www.planning.wa.gov.au
Western Australian Planning Commission and Department of Planning, 2012.
Western Australia Tomorrow - Population Report No. 7, 2006 to 2026.
Peppermint Grove Beach Land Use Strategy
73
Shire of Capel
Appendix 4
Acknowledgements
Shire of Capel
Tim Shingles - Project Planner
Chris Burwood - Director, Planning and Development Services
Theresa Gould – Asset Information Officer
CCS Strategic
Mark Casserly - Principal
Department of Planning
www.planning.wa.gov.au
Australian Bureau of Statistics
www.abs.gov.au
Western Australian Land Information Authority
www.landgate.wa.gov.au
Western Australian Planning Commission
www.planning.wa.gov.au
Peppermint Grove Beach Community Association
Residents of Peppermint Grove Beach
photos © Tim Shingles
Oblique aerial photos © Daryl Jones - Ozaerial
Peppermint Grove Beach
Community Association
74 Peppermint Grove Beach Land Use Strategy