The prospect of being able to build a second full-sized home on rural land is generating growing interest across the Hawkesbury.
While Penrith residents already have pathways to detached dual occupancies and The Hills permits dual occupancies across much of its residential land, Hawkesbury rural landowners remain in planning limbo awaiting both Council's detached dual occupancy proposal and the NSW Government's response to the Upper House Rural Housing Inquiry due on 30 June.
But many landowners are still asking a simple question:
Would my property qualify?
The answer is not straightforward. It depends on where the property is located, its zoning, flood and bushfire constraints, lot size, access arrangements and the type of development proposed.
What is clear is that momentum is building behind reforms designed to make detached dual occupancies easier to achieve in rural areas.
The Hawkesbury Business Group (HBG) says it has been advocating for the change for years and believes the district could be one of the major beneficiaries if reforms proceed.
"We have been campaigning for detached dual occupancies to be permissible in Hawkesbury for some time," the organisation said.
"During a housing crisis we are grateful that Hawkesbury Council has led the way in championing the cause for detached rural dual occupancies, in particular Councillor Nathan Zamprogno for his efforts in bringing detached dual occupancies to fruition."
What's the Difference?
Many residents use the terms "granny flat" and "dual occupancy" interchangeably, but they are quite different.
A granny flat, officially known as a secondary dwelling, is generally a smaller dwelling associated with a primary residence. They are typically limited in size, cannot be separately subdivided and remain linked to the principal dwelling.
A detached dual occupancy, by contrast, consists of two separate principal dwellings on a single lot. Both homes can be full-sized residences, providing greater flexibility for extended families and rural landowners.
The Hawkesbury proposal focuses on detached dual occupancies rather than traditional granny flats.
Why Families Want the Change
Supporters argue detached dual occupancies could help address several challenges facing the district.
Many Hawkesbury families own properties that have been held across multiple generations. Adult children often struggle to remain in the area due to housing affordability, while ageing parents may wish to downsize without leaving their community.
Detached dual occupancies could allow two households to live independently on the same property while maintaining family connections.
For farming families, the arrangement could also help with succession planning by enabling younger generations to remain on the land while older generations transition into retirement.
Not Every Property Will Qualify
Even if planning reforms proceed, approval would not be automatic.
Properties would still need to satisfy a range of planning requirements which may include minimum lot sizes, environmental constraints, bushfire requirements, flooding considerations, vehicle access standards, and servicing and infrastructure requirements.
The final details will depend on the outcome of both Council and State Government planning processes.
Flooding and Bushfire Remain Key Issues
One of the biggest questions is how detached dual occupancies would work within the Hawkesbury-Nepean floodplain.
Large parts of the local government area are subject to significant flood risk, meaning agencies such as the NSW Reconstruction Authority and State Emergency Service are likely to closely examine proposals that could increase the number of residents requiring evacuation during major flood events.
Bushfire-prone land is another consideration.
Properties in areas such as Bilpin, Kurrajong Heights, Mountain Lagoon, Colo, St Albans and the Upper Macdonald may require additional bushfire protection measures, including Asset Protection Zones, emergency access requirements and specialised building standards.
These requirements can add significantly to construction costs.
Waiting on Government Decisions
While Hawkesbury Council has already advanced its planning proposal, progress has been slower than many supporters had hoped.
The Hawkesbury Business Group acknowledged the frustration.
"There are also disappointments along the way. Unfortunately the Hawkesbury's planning proposal to allow detached dual occupancies in rural zones seems to have stalled," the group said.
However, the organisation believes a major breakthrough could be imminent.
"There is light at the end of the tunnel, with the NSW Government's response to the Upper House Inquiry into rural housing and secondary dwellings due on 30 June 2026."
The inquiry, chaired by Upper House MP John Ruddick, examined barriers to rural housing and recommended significant reforms to allow additional housing opportunities on rural land.
According to the Hawkesbury Business Group, Mr Ruddick believes communities such as the Hawkesbury stand to benefit substantially from the proposed changes.
"The Hon John Ruddick MLC has been a big supporter and believes the Hawkesbury community would be a major beneficiary of the proposed reforms, along with many other rural areas across the state."
The group remains optimistic that both Council and State Government reforms could be implemented before the end of the year.
What Happens Next?
Before detached dual occupancies become more widely available, the proposal must still complete agency consultation, be publicly exhibited, receive and consider community submissions, return to Council and then be finalised through the Department of Planning, Housing and Infrastructure.
Residents will have the opportunity to review the details and make submissions before any final decision is made. For now, landowners across the district are watching closely. If approved, the reforms could represent one of the most significant changes to rural housing opportunities in the Hawkesbury in decades.
At a Glance the difference between Granny Flat & Duel Occupancy
| Feature | Granny Flat | Detached Dual Occupancy |
|---|---|---|
| Number of principal dwellings | One | Two |
| Typical size | Up to 60m² | Full dwelling |
| Separate household | Yes | Yes |
| Separate principal residence | No | Yes |
| Suitable for multi-generational living | Limited | Yes |
| Subject to planning controls | Yes | Yes |
Did you know about the "Shouse"?
Many Hawkesbury properties already contain informal multi-generational living arrangements with people living in a Shouse - a shed converted on the inside to replicate a house. Supporters of detached dual occupancy reforms argue the proposal would allow families to achieve the same outcome through properly approved and regulated housing.
Would My Property Qualify for Dual Occupancy
Even if detached dual occupancies become permissible in the Hawkesbury, landowners would still need to satisfy planning and environmental requirements. Before making plans for a second home, consider the following questions.
1. What Is My Zoning?
The proposed reforms are primarily aimed at rural land.
Properties in zones such as:
- RU1 Primary Production
- RU2 Rural Landscape
- RU4 Primary Production Small Lots
- RU6 Transition
are most likely to be affected.
Some environmental zones may also be considered, depending on the final State Government reforms.
2. Is My Property Flood Affected?
This is one of the biggest issues in the Hawkesbury.
Large parts of Windsor, Richmond, Pitt Town, Ebenezer, Sackville, Freemans Reach, Wilberforce, Glossodia, Cornwallis and the Richmond Lowlands are subject to flood planning controls.
A second dwelling could mean:
- Additional evacuation requirements.
- Higher floor level standards.
- Additional engineering costs.
- Restrictions on where a dwelling can be located.
The NSW Reconstruction Authority and State Emergency Service are expected to closely examine these issues.
3. Is My Land Bushfire Prone?
Many Hawkesbury rural communities are located within bushfire-prone areas including:
- Bilpin
- Kurrajong Heights
- Berambing
- Mountain Lagoon
- Colo
- St Albans
- Upper Macdonald
- Bowen Mountain
Additional dwellings may require:
- Asset Protection Zones (APZs).
- Bushfire attack level assessments.
- Dedicated emergency access.
- Specialised building materials and construction methods.
These requirements can significantly increase building costs.
4. Can Emergency Services Reach the Property?
Council and State agencies will likely consider:
- Road access.
- Driveway width.
- Vehicle turning areas.
- Emergency evacuation arrangements.
Properties with difficult access may face additional requirements.
5. Are Services Available?
A second dwelling may require:
- Water supply.
- On-site sewage management systems.
- Electricity upgrades.
- Telecommunications services.
Some rural properties may require substantial infrastructure investment before approval is granted.
6. Is the Lot Large Enough?
Final controls have not yet been determined.
Minimum lot size requirements may apply depending on zoning, environmental constraints and State Government policy settings.
Potential Benefits
Supporters say detached dual occupancies could:
✔ Help adult children remain in the Hawkesbury.
✔ Allow ageing parents to stay close to family.
✔ Improve farm succession planning.
✔ Increase housing supply without subdivision.
✔ Provide flexibility for multi-generational living.
Potential Challenges
Critics argue the reforms could:
✖ Increase evacuation numbers during floods.
✖ Place pressure on rural roads.
✖ Affect rural character.
✖ Increase demand on local infrastructure.
✖ Create servicing challenges in remote areas.
Key Dates
30 June 2026
NSW Government response due to the Upper House Inquiry into Rural Housing and Secondary Dwellings.
Later in 2026
Expected public exhibition of Hawkesbury Council's planning proposal.
Before Any Changes Occur
Residents will have the opportunity to review the proposal and lodge submissions.
Quick Test
If you answer "Yes" to most of these questions, your property may have a greater chance of benefiting from the reforms:
☐ Is my property in a rural zone?
☐ Is there sufficient access for emergency vehicles?
☐ Can flood and bushfire requirements be met?
☐ Is there enough space for a second dwelling?
☐ Can water, sewerage and other services be provided?
☐ Would a second dwelling support family, farming or housing needs?
Remember: Even if the reforms proceed, approval is unlikely to be automatic. Every property will still need to satisfy planning, environmental and safety requirements.
