Northern Parklands Bill

Second Reading

The Hon. E.S. BOURKE (Minister for Emergency Services and Correctional Services, Minister for Autism, Minister for Recreation, Sport and Racing) (16:42): I move:

That this bill be now read a second time.

I seek leave to have the second reading explanation and explanation of clauses inserted in Hansard without my reading them.

Leave granted.

The Northern Parklands Bill 2025 seeks to create a new statutory authority responsible for establishing and maintaining the new Northern Parklands proposed in the Greater Adelaide Regional Plan, also known as the GARP.

The GARP is a long-term vision over a 30-year period to support the growth of Greater Adelaide that accommodates approximately 85% of our state's population and development activity. It identifies key opportunities to create and develop thriving and active communities underpinned by high quality social and physical infrastructure.

The creation of parklands has always been part of Adelaide's modern history and identity. From Light's 1837 Adelaide Plan establishing a greenbelt around the city, through to the River Torrens Linear Park in the 1980s and 1990s and more recently, the Coast Park, connecting a 70km stretch of Adelaide's coastline.

The Northern Suburbs of Adelaide have been doing the heavy lifting for the urban growth of the State. As these new suburbs around Kudla, Angle Vale and Evanston grow, so should the parklands and natural beauty surrounding them.

The history behind the Karuna name 'Kudla' means level ground or open. This level ground was traditionally the open space green belt separating both Gawler and suburbs to the south inclusive of Munno Para, was identified within the Greater Adelaide Regional Plan to support thousands of new homes. The establishment of the Northern Parklands will support, enhance and define the character, amenity and identity of the open space of Kudla and surrounding communities.

Spanning up to 1,000 hectares, the Northern Parklands will be one of the most significant public open space investments in South Australia's history. It will support regional recreation, biodiversity, connectivity and community health—combining linear parkland with sporting precincts, passive open space and climate-responsive landscapes.

The vision of the Northern Parklands is to be established from the ridgeline following One Tree Hill Road, the future urban growth areas surrounding Kudla Railway Station, through to the banks of the Gawler River via Karbeethan Reserve.

The Northern Parklands Bill sets clear objectives for the establishment of the Northern Parklands. This will include:

Ensuring that the Parklands are a sporting, cultural and recreational complex of statewide significance

Promoting and encouraging the use of the parklands by the public, inclusive of tourist attractions.

Developing and maintaining the Parklands so that they support and reflect a diverse range of environmental, social values and activities that should be protected and enhanced.

In addition, the Northern Parklands will deliver high-quality, well-designed play spaces, bike paths and walking trails. It will provide spaces for cultural activities, entertainment and will be a significant drawcard for Greater Adelaide and the State.

The Northern Parklands Bill will establish the initial phase of the Northern Parklands through a plan lodged in the General Registry Office, also known as the GRO. The GRO plan will identify existing land owned by both by State and Local Governments which will form part of the initial stage of the Northern Parklands.

Upon commencement of the Act, the land identified within the GRO plan will immediately fall to the care, control and management of the Northern Parklands Trust.

Timing and staging are critical in ensuring the successful delivery and sustainable operation of the Northern Parklands. The Bill seeks to achieve this this through the following timeframes:

Stage 1 of the Northern Parklands will be completed by 2030, with the Northern Parklands Bill requiring land identified in a second GRO Plan to be acquired within 5 years of commencement of the Bill.

This land is currently owned privately. In developing this second GRO Plan, efforts have been made to reduce the impact on private landowners where possible, while still maintaining the integrity of the green corridor of the Northern Parklands.

Stage 2 of the Northern Parklands will be completed by 2040. Further land will be identified in a third GRO Plan and will be acquired between 2030 to 2040. This land is both owned by government and private land holders.

To create and maintain the Northern Parklands, the Bill seeks to establish a new governance body, to be known as the Northern Parklands Trust. The Northern Parklands Trust has been modelled on the successful West Beach Trust established under the West Beach Recreation Reserve Act 1987.

The Northern Parklands Bill requires the Northern Parklands Trust to comprise of seven members with the following composition:

3 Members appointed by the Minister including 1 Presiding Member;

2 Members appointed by the Minister following nomination by the adjacent local councils;

A member of the Green Adelaide Board or an urban ecologist nominated by the Minister responsible for administration of the Landscape South Australia Act 2019.

A member who is a First Nations person within the meaning of the First Nations Voice Act 2023.

The Northern Parklands Bill requires members to have experience or qualifications in a range of areas which will be vital to the Trust's operations, including:

biodiversity or environmental planning or management;

recreation or open space planning or management;

cultural heritage conservation or management;

landscape design or park management;

tourism or event management;

aboriginal culture and practice;

financial or business management; and

local government.

In addition to establishing the Northern Parklands Trust, the Northern Parklands Bill also:

Allows for the initial establishment of the Northern Parklands, as well as future land acquisition to expand the Northern Parklands;

Provides a mechanism to recoup the costs associated with acquiring the necessary land for Stages 1 and 2 from landowners who receive an uplift in the value of their land as a result of a future rezoning process;

Defines responsibility for ongoing management and maintenance of the Northern Parklands, including responsibility for future development such as recreational caravan parks and issuing of leases and licences

Provides a power to levy rates or charges from local council in order to fund the ongoing maintenance costs of the Northern Parklands, with local council then able to recoup these costs through council rates;

Requires the Northern Parklands Trust to establish an annual business plan and a long-term strategic plan for the Northern Parklands to guide its ongoing management and financial sustainability;

Provides a mechanism to enter into agreements with local government to utilise their existing resourcing for ongoing maintenance, to achieve efficiencies;

Ensures the ongoing protection of the Northern Parklands from disposal by a future government; and

Provides an ability to establish additional statutory trusts through regulation should other parklands be established under the Northern Parklands Bill.

The Northern Parklands will also incorporate carefully planned commercial uses that contribute to the site's activation, identity as a destination and long-term financial sustainability. These commercial uses may include nature-based tourism, hospitality, events or other facilities aligned with the Parklands' broader vision and the objects of the Bill. Revenue from these uses will be reinvested into maintenance, greening and the ongoing sustainable operations of the Northern Parklands.

Additionally, the Northern Parklands Trust will be able to partner with both the City of Playford and the Town of Gawler. This will allow for the utilisation and development of the existing Council workforce for the operations of the Northern Parklands to drive a sustainable operating model and avoid duplication of resources between that of the Northern Parklands Trust and Local Government.

Looking forward, the Government's vision for the Northern Parklands will be expressed in a masterplan, which will be developed over the next 12 months. The master planning process will involve significant engagement with the community and impacted landowners through ongoing consultation and dialogue. The masterplan will guide the future development of the Northern Parklands and the Kudla growth area and will act as a catalyst for private investment and enable and support vital housing growth in Adelaide's North.

The development and vision of the Northern Parklands will change the landscape of northern Adelaide and establish a legacy for future generations. It provides opportunity for people to have access to high quality urban space, parklands and facilities which make Adelaide renowned on the global stage.

GARP has provided a significant step change and approach where we identify infrastructure requirements before houses are built. This is inclusive of schools, hospitals, emergency services and parklands. This enables communities to have the confidence knowing that their new homes will be supported by amenities and services from the outset.

This Bill has been made possible by many people and they should be recognised for their ongoing efforts, hard work and dedication to both the South Australian planning system and public service. The development of the GARP took in excess of 24 months and had over 1400 submissions which helped shape the GARP and key details such as the Kudla Growth Area and the Northern Parklands.

I'd like to take the time to thank key contributors for the development of this Bill and the vision and execution of the Northern Parklands:

Both the City of Playford and the Town of Gawler who continue to be a strong partner for the development of the Northern Parklands.

On this note, I would like to take the opportunity to recognise and thank the former Mayor of the Town of Gawler, Karen Redman. Mayor Redman served the Town of Gawler for over 10 years as Mayor, with the upmost conviction, dedication and vision to make Gawler the thriving community that it is today.

The State Planning Commission, led by Craig Holden has been instrumental in the development and the delivery of the Greater Adelaide Regional Plan.

David Reynolds as the Chief Executive of the Department for Housing and Urban Development who continues to lead a brilliant team, along with Sally Smith who despite having now left the Department, was instrumental in the development of GARP and its implementation.

Chelsea Lucas, Marc Voortman and Ben Sieben who have been key contributors to the Bill and the commencement of the masterplan within the Department of Housing and Urban Development.

I commend this Bill to the House.

I seek leave to insert the explanation of clauses in hansard without reading.

Explanation of Clauses

Part 1—Preliminary

1—Short title

2—Commencement

These clauses are formal.

3—Interpretation

Definitions are inserted for the purposes of the measure.

Part 2—Establishment etc of parklands

Division 1—Northern Parklands

4—Northern Parklands

The Northern Parklands are established.

5—Care, control or management etc of Northern Parklands

The care, control and management of the Northern Parklands is placed in the Northern Parklands Trust.

Division 2—Other parklands

6—Establishment of other parklands

The Minister may establish other parklands.

7—Care, control or management etc of other parklands

The Minister may place the care, control and management of parklands established under the Division in a statutory trust.

A linear park may be placed in the care, control and management of a statutory trust.

Division 3—General

8—Sale of land

Land within trust parklands may not be sold or otherwise disposed of except in accordance with a resolution passed by both Houses of Parliament.

9—Roads

Provision is made in relation to road areas in trust parklands.

10—Related matters

These provisions are technical.

Part 3—The Northern Parklands Trust

Division 1—Establishment of Northern Parklands Trust

11—Northern Parklands Trust

The Northern Parklands Trust is established.

12—Membership of Northern Parklands Trust

Provision is made in relation to the membership of the Northern Parklands Trust.

13—Application of Part 5 to Northern Parklands Trust

Part 5 (other than Division 1 and Division 7) applies to the Northern Parklands Trust.

Division 2—Functions etc

14—Functions of Northern Parklands Trust

The functions of the Northern Parklands Trust are set out.

Division 3—Annual business plan

15—Annual business plan

The Northern Parklands Trust must prepare a business plan for each financial year.

Part 4—Northern Parklands levy

16—Contributions by constituent councils

Provision is made for the constituent councils for the Northern Parklands region to make a contribution towards the costs of the Northern Parklands Trust performing its functions relating to the Northern Parklands in respect of a particular financial year.

17—Payment of contributions by councils

Provision is made in relation to the payment of contributions by councils.

18—Funds may be expended in subsequent years

This provision is technical.

19—Imposition of levy by councils

The constituent councils for the Northern Parklands region must impose a levy on rateable land in the Northern Parklands region to reimburse themselves for the amounts contributed (or to be contributed) to the Northern Parklands Trust under the Part.

Provision is made in relation to the application of Chapter 10 of the Local Government Act 1999 to the levy.

20—Costs of councils

The Northern Parklands Trust is liable to pay to each of the constituent councils for the Northern Parklands region an amount determined in accordance with any requirements of the Minister on account of the costs of the council in complying with the requirements of the Part.

Part 5—Statutory trusts

Division 1—Establishment of statutory trusts

21—Establishment of statutory trusts

The Governor may, by regulation, establish a statutory trust.

Division 2—General

22—General

This provision sets out the nature and certain powers of a statutory trust.

Division 3—Ministerial control

23—Ministerial control

A statutory trust is subject to the control and direction of the Minister.

Division 4—Membership etc of statutory trusts

24—Appointment of members etc

Provision is made in relation to the appointment of members of a statutory trust.

25—Allowances and expenses

Provision is made in relation to allowances and expenses of members.

26—Validity of acts

This provision is technical.

27—Procedures at meetings

Provision is made in relation to procedures at meetings of a statutory trust.

Division 5—Staff

28—Staff

Provision is made in relation to staff of a statutory trust.

Division 6—Committees and delegations

29—Committees

A statutory trust may establish committees.

30—Delegations

Provision is made for a statutory trust to delegate any of its functions or powers.

Division 7—Application of Part 4 (trust parklands levies) and annual business plan

31—Application of Part 4

Part 4 (which relates to contributions to trust parklands by constituent councils and the recovery of contributions by the imposition of a levy) may be applied (by regulation) in relation to trust parklands for which a statutory trust is the responsible statutory trust.

The regulations may modify the measure in connection with the application of Part 4 in relation to trust parklands.

32—Annual business plan

A statutory trust must prepare an annual business plan for a financial year.

Division 8—Financial provisions

33—Dealings with money and borrowings

34—Accounts and audit

35—Power to advance money, to act as guarantor etc

These provisions are technical.

Division 9—Other matters

36—Tax and other liabilities of statutory trust

This provision is technical.

37—Register of leases and licences

A statutory trust must keep a register of leases and licences granted by the statutory trust over any trust parklands.

38—Damage etc to property of statutory trust

It is an offence to damage (or do other things to or on) property of statutory trust.

39—Power to resume land in trust parklands

The Governor may resume land in trust parklands if satisfied that the land is required for a public purpose.

40—Agreements between statutory trusts and councils relating to enforcement

A statutory trust may enter into an agreement with a council (or councils) in whose area trust parklands for which the statutory trust is the responsible statutory trust are located for the enforcement by the council (or councils) of provisions of the measure in relation to the trust parklands.

Division 10—Performance agreements and long-term strategic plans

41—Performance agreements

Provision is made in relation to performance agreements for statutory trusts.

42—Long-term strategic plan

A statutory trust must prepare a long term strategic plan.

Part 6—Miscellaneous

43—Delegation by Minister

The Minister may delegate any of the Minister's functions or powers under the measure.

44—Approvals by Minister or Treasurer

This provision is technical.

45—Acquisition of land

The Minister is authorised to acquire land in accordance with the Land Acquisition Act 1969 for the purpose of increasing the area of any trust parklands.

The Minister is required to acquire certain defined land within specified periods for the purpose of increasing the area of the Northern Parklands.

46—Recovery of costs of certain acquisitions

The Minister's reasonable costs of acquiring land that the Minister is required to acquire for the purpose of increasing the area of the Northern Parklands are to be recovered from the owners of specified land.

47—Regulations and fee notices

Provisions is made for regulations and fee notices under the measure.

Schedule 1—Transitional provisions

Transitional provisions are inserted for the purposes of the measure.

Debate adjourned on motion of Hon. D.G.E. Hood.