Plans, strategies and reports

My fellow Councillors, staff, ladies and gentlemen, I am pleased to table Toowoomba Regional Council’s 2025-26 Budget and Operational Plan.

Today’s budget adoption demonstrates belief in our region, belief in our community, belief in each other as your elected Councillors and belief in the Council workforce.

Like you, we love where we live. We love the Toowoomba Region.

Which is why we’ll continue to work with our teams to ensure we’re delivering essential services and maintaining that liveability. The very reasons why we choose to live, learn, work, and play where we do.

This term, Councillors have been committed to doing things differently for better. With that in mind, there’s much to look forward to in this year’s budget. It’s about strengthening our foundations with a clear focus on careful financial management, delivering essential services to our growing communities and maintaining existing infrastructure.

This $705 million financial plan will allow Council to maintain and upgrade existing facilities and provide essential services while planning for a brighter future for current and successive generations.

And with that in mind, today’s Budget is about Council Strengthening our Foundations with few new projects and plenty of essential and mandatory upgrades of existing infrastructure to support our growing communities.

More than ever before, Councils across Australia are being asked to deliver more services with less funding.

The cost-shifting that has occurred towards local government for the past twenty years, according to LGAQ research, shows a 378 percent increase during this time.

No level of government provides so many immediate, critical services as your local council.

That’s why TRC joined the Local Government Association of Queensland’s campaign earlier this year calling for an increase in untied funding for all Councils to at least 1 percent of Commonwealth tax revenue.

For us here in the Toowoomba Region it is a genuine lived experience of funding having decreased over time.

The huge reduction in Financial Assistance Grants (FA Grants) we have received has had a significant impact on our ability to keep our budget in surplus.

FA Grants are used to take the pressure off ratepayers to fund our business-as-usual activities, just like a household wage might help pay for fuel, electricity, rent or mortgage repayments.

In the 2021/22 financial year, TRC received over $19 million in FA Grants. The amount we received this year was just $5.5 million, a $13.5 million decrease.

Despite that, Councillors and the executive leadership team have worked hard to deliver today a Budget with an operating surplus of $1.5 million.

In this Budget, Council has delivered a general rate rise for Toowoomba Urban residential ratepayers of 9.5 per cent. 68 percent of all rateable properties across the Toowoomba Region will receive a general rate rise of less than 10 per cent.

The average Toowoomba Urban residential ratepayer will have an increase of around $241 a year, or $4.60 a week on their general rates with discounts factored in. Keeping in mind changes vary depending on individual circumstances.

It’s important to note, this considered rate increase is on the basis of a strong commitment from this Chamber to look at the way we do business and the services we deliver to the community.

We have factored in $14.75 million of savings in materials, services and operational expenditure in the adoption of today’s Budget.

Increases to the cost of living is having significant impacts on our operations with Council continuing to shoulder many cost increases on behalf of our ratepayers.

This year we have Budgeted $14.4 million for electricity. That’s $14.4 million just to keep essential services running and the lights on. That’s an increase of $1.9 million from last year or 15.5 per cent.

The story doesn’t get any better for Council’s insurance premiums. Despite not changing our level of coverage, it’ll cost Council $5 million to pay our premiums this year which is a $2.1 million increase, 73 percent higher than last year.

The volatility in fuel prices will also be felt with a whopping $5.7 million forecast in fuel alone to keep Council’s fleet on the road.

Just like households, these are unavoidable expenses for Council that keep rising well beyond inflation each year.

This year, we continue to be burdened with the Queensland State Government’s Waste Levy Bin Tax. This levy covers 39 of Queensland’s 77 local government areas.

Essentially, the State Government is now taxing us for the amount of waste which ends up in our landfills. We have Budgeted $9 million to cover the full cost of the levy, with a gap of $4.2 million to be funded from general rates and commercial gate fees after the State Government’s annual waste levy payment.

This is another prime example of costs increasing which impact our bottom line.

Despite these hurdles, there is plenty to be positive and thankful for. Today’s Budget draws on the combined talents of Council’s Financial Services team in collaboration with all operational areas across Council.

I thank my Council colleagues for their input in developing this Budget which will see Council continue to deliver essential services for our growing Region.

The Budget reflects the priorities outlined in Council’s Operational and Corporate Plans.

Our $705 million operational and capital works program once again delivers projects and services to support our growing communities across the Toowoomba Region.

Council will spend $236 million in this Budget on capital projects.

Projects like continuing the roll-out of smart water meters, upgrading formed and unformed lower order roads, renewing playground equipment in the parks of our regional towns and essential water main and sewer upgrades, are all included in this year’s budget.

We’re spending $469 million on our core Council operations in delivering those essential services to our residents, ensuring waste is collected, parks and gardens are maintained, libraries and recreation facilities remain open and that clean and safe drinking water flows from the taps of homes right across the Region.

Council’s obligation to maintain our existing infrastructure and our ability to manage our $7.1 billion asset base across 13,000km² is a key performance indicator by which we are evaluated by the Queensland Treasury Corporation.

Despite many external demands, Council continues to work in accordance with our long-term financial sustainability parameters to ensure we budget for essential capital works and services that support our communities for the coming year and into the future.

Council’s overall operational and capital expenditure parameters are based on our 10-year Long Term Financial Forecast (LTFF), which adopted by Council, and overseen by the Department of Local Government, the Queensland Treasury Corporation and Queensland Audit Office.

In the coming year, the major areas of operational and capital expenditure will include:

• $263 million for water and wastewater projects (including Cressbrook Dam Safety Improvement Project);
• $160 million for roads, drainage, footpaths and bikeways;
• $122 million for community services, facilities and parks and recreation projects;
• $50 million for waste services;
• $17.5 million for Disaster Recovery Funding Arrangements

We will continue to advocate for our fair share of funding to achieve our community goals and ambitions.

This includes continued advocacy to assist Council to deliver the Cressbrook Dam Safety Improvement Project. We have budgeted a further $96.5 million for works on this mandatory project.

In fact, our water security continues to be a high priority for Council and this year we will enter the second year of a five-year price path for water infrastructure and water usage.

We operate some 8 water treatment plants, 7 waste water treatment plants, more than 2,000 kilometres of water mains, almost 1,400 kilometres of wastewater mains and three dams that all require continued maintenance and renewal to keep taps on and sewage moving. The water infrastructure charge for an average property will increase $83.30 for the year or $1.60 per week with changes to the early payment discounts also factored in.

We have also budgeted $7.2 million for the Four Communities Project which, once complete, will service the four communities of Greenmount, Clifton, Nobby and Cambooya. The project will be vital to the growth and sustainability of these rural areas.

In our Region, Council is committed to working with our local suppliers. We proudly promote our Procurement Policy, which continues to pay dividends.

In the current financial year to May 2025, Council spent $171 million with local suppliers. This puts us just shy our 60 per cent target of our total expenditure year to date, with additional payments to be made in June.

In delivering today’s Budget, I particularly wish to acknowledge and thank:

• All of my Councillor colleagues around the table;
• Council’s former Interim Chief Executive Officer Mr Colin Jensen, current Acting CEO Nick Hauser and the Executive Leadership Team;
• This includes General Manager of Corporate Services, Ann-Marie Johnston;
• Importantly, I’d also like to thank our staff in Financial Services and Customer, Communication and everyone involved in any way in the formulation and communication of today’s Budget adoption.

Your assistance is greatly appreciated.

This Budget is about Council Strengthening our Foundations and working hand-in-glove with the community to chart a path forward for a bright future for our Region.

Thank you.

Watch the Special meeting for the 2025–26 budget

General and water rates adjust yearly. We weigh up many factors in our decision-making around adjusting rates. The following points contribute to the reason rates are adjusted each year:

1. Rising costs: Electricity, insurance, fuel, materials and leasing are all expenses that increase over time and need to be accounted for in the budget. The cost of maintaining roads, parks, libraries and essential services rises over time. For example, our insurance premiums for the 2025–26 financial year have risen 73% compared to 2024–25 original budget.
2. Maintaining infrastructure, facilities and services: The maintenance and improvement of infrastructure, facilities and services is funded heavily by your rates.
3. Population growth: As the population increases, so too does the demand for services such as rubbish collection, community programs and water access.

2025–26 rates increase

The average general rate will rise 9.5% for Toowoomba Urban residential ratepayers. This equates to an average $4.60 weekly increase. A general rate rise of less than 10% will apply to 68% of all rateable properties across the Toowoomba Region. Council has been faced with consistently rising costs affecting every factor of our operations - from road making materials, construction costs, insurance and electricity. This year’s increase reflects the real cost of delivering essential services and investment in the sustainable growth of our region.

As part of the budget drafting process, we undertook several internal reviews and found significant savings across operations. However, like all households and businesses, some rising costs like materials, services, electricity and insurance are unavoidable. Cutting more deeply would mean reducing or removing essential services that our communities rely on. We believe this rate increase is a more balanced way to keep services running while staying financially responsible.

Behind every service is a team of people, systems, and compliance costs that make it possible. Reducing 'admin' sounds simple, but most back-end costs support frontline services, like payroll, for example. We continually review operations to find savings and improve efficiency.

Cost of living crisis

We recognise that the cost of living is having an impact in our community. We can support you to pay your rates in different ways.

If you are having difficulties paying your bill please speak to our friendly and understanding staff about a payment plan.

Land valuations

Many of our residents will have received a property value rise in their latest land valuation. The change in your valuation doesn’t mean your rates will change by the same amount. We adjust the 'rate in the dollar' down when values go up, to moderate valuation changes.

It’s important to note that we don't set property values as these are independently assessed by the State Government. While we set the overall general rate to pay for essential services, individual rates are levied based on property valuations. In many cases, a change to land values doesn't mean we are collecting more money overall, they simply affect how rates are divided among property owners. A change to your valuation only means your distributed portion of the general rate may have changed. 

We are committed to completing the mandatory Cressbrook Dam Safety Improvement Project to widen the dam spillway and have budgeted $96 million in the capital budget for the 2025–26 year. This is funded through our general funding stream. There is no extra charge on your general rate notice, or your water bill, related to the Cressbrook Dam Safety Improvement Project.

This year, we have included a 5 per cent pay-on-time discount on general rates and water rates for all residential ratepayers (including rural residential). Commercial properties no longer receive a pay-on-time discount.

We don't have the highest rates in Queensland. In fact, the minimum general rate for Toowoomba Urban residential properties is actually very similar to other similar local government areas.

It’s also worth taking a closer look at what’s included in your rates notice. In the Toowoomba Region, essential services like water supply and sewerage maintenance are managed and delivered directly by us.

It’s also important to remember that larger urban Councils—like Brisbane or the Gold Coast—have much higher population densities, sometimes around 1,000 people per square kilometre, compared to a much smaller population base in a much larger geographical area in the Toowoomba Region. This gives them a broader ratepayer base to share the cost of services, allowing for lower general rates while still collecting more revenue overall.

We provide a wide range of services and infrastructure, from roads, waste collection, wastewater and water services to libraries, parks, pools, animal management, economic development, planning and environment and community programs. Some costs are visible, like new footpaths and park upgrades. Others, like maintaining critical infrastructure, planning, and service administration and advocacy are less obvious but just as important.

Even if you don’t regularly use facilities like pools or libraries, your rates go toward shared services that benefit the entire region, like rural roads, bushfire and disaster preparedness, animal control, waste facilities and pest management. While you may not personally use every service or facility supported by your rates, we are committed to making these services available for everyone in the community. They’re here when you need them, whether that’s today, tomorrow, or sometime in the future.

We work hard to make sure funding goes where it’s needed most. Factors like safety, risk, the laws that must be followed, long-term planning, and how much benefit a project brings to the community are considered. Essential services; roads, water, wastewater, waste and safety - always come first. After that, the focus is on projects that help our community grow, improve liveability and support the local economy. Projects are also ranked based on how much money there is available. This informs the choice about what can be done in the coming year. When it comes to day-to-day services, things are grouped into five types:

• essential: must-do, legally required e.g. water infrastructure, road, transport, parks, libraries, events, internal operations and regulatory responsibilities.
• core: basic services
• community: things that help people connect
• corporate: internal support services
• discretionary: extras we fund when possible.

The aim is to strike a balance between service levels, cost and risk to get the best results for the community with the money that is available.

We know road maintenance is a top priority for many residents, and we’re continually working to improve our road network. Grading schedules are based on several factors including traffic volumes, safety, weather impacts, and available funding. We have a detailed capital works and maintenance program that outlines planned upgrades and routine grading across the region. You can view the full proposed 2025–26 expenditure on capital works on our website.

Each year, our financial staff prepare a budget that balances the community’s needs, infrastructure priorities and available funding. It’s shaped by strategic planning, service reviews, and legislation, all with consideration to rising costs and available revenue.

Staff use important planning documents to help shape the budget. This includes the Corporate Plan (our big-picture goals), the Operational Plan (what we’re doing this year) and various other working plans.

To plan how much money we need and where it’s going to come from, we consider a variety of factors, like how much services cost, the level of service required, any risks or legal requirements, what grant funding is available and the overall economy. Before we consider raising rates or charges, grants, contributions or other means of raising revenue are considered.

budget planning usually kicks off in October, the previous year. During this time, managers and coordinators work on their area’s budget , and the Finance team brings everything together. This draft budget  then goes to the leadership team, Councillors and the Mayor for briefing and feedback – this process can take up to 9 months as changes are incorporated. Once all of the feedback has been considered and the draft budget  has been fully compiled, it goes to the elected members one final time for voting and adoption. At this meeting the elected members can implement their final amendments.

We are monitored through strict financial oversight to ensure our budget  is fair, transparent and sustainable. This involves:

• Legislation and regulations: we must follow laws including the Local Government Act, which requires us to prepare annual budget s, financial reports, and long-term financial plans.
• Independent audits: Government auditors assess whether we are managing finances effectively and complying with regulations. We also report against financial sustainability ratios.
• Public accountability: We publish our Annual Report detailing our financial performance, allowing residents to see how funds are spent. Community consultation is also required for strategic planning.
• Audit panels and oversight bodies: Independent audit panels review our finances, risk management, and governance practices to ensure responsible spending.
• State Government monitoring: Departments like the Queensland Audit Office assess whether we're planning and delivering services sustainably.

This levy was introduced in 2024–25 to help us progress and partner with the Queensland State Government to deliver key elements of the Toowoomba Region Sustainable Transport Strategy 2023 which would not be able to be delivered in a business-as-usual approach. Funds from the levy will allow us to advocate to the State Government for support on additional public transport services that our growing region needs and deserves.

How the levy is included on rate notices

The Public Transport Levy has been included on all rate notices as a ‘Separate Charge’ levied equally on all rateable land across the Toowoomba region. The Public Transport Levy comes at no net increase to ratepayers as it replaces the previous ‘Park and Open Space’ and ‘Biosecurity and Bushland Conversation’ levies, both of which have funds set aside to be used for the purposes of their previous collection.

This levy is set at $43.58 for the full year.

How the Public Transport Levy helps rural townships

Councillor deliberations for the introduction of a Public Transport Levy included ensuring that Toowoomba regional townships benefited through better public transport connectivity. The Toowoomba region covers 13,000 square kilometres and for townships to be connected through a coordinated public transport network is something we should aspire to. Without a financial commitment to making a start, we can't expect anything to change. We are well aware many of our rural townships and areas have no or limited access to public transport options, this is a major reason we need to change our approach.

Public transport services feedback

We welcome community feedback on the delivery of improved public transport services across the region. Email info@tr.qld.gov.au with your suggestions.

For a full list of Australian Government cost-of-living measures visit the Prime Minister's website. A few incentives in place are mentioned below.

Tax cuts

The Australian Government has rolled out tax cuts for every taxpayer, with another two tax cuts in 2026 and 2027 and introduced a minimum $1,000 tax deduction every year for all workers.

Energy bill relief

In 2025, the Australian Government is providing another $150 off power bills for every household and around one million small businesses. The money will come straight off your bill.

Support for students and apprentices

The Australian Government is wiping 20% off everyone’s student debt and they are providing support to the next generation of tradies with a $10,000 payment to help construction and clean-energy apprentices finish their studies.

Minimum wage increase If you’re on the minimum wage or an award, you received a pay rise of 3.5% from 1 July, 2025. That includes workers in hospitality, retail, community support and more.

Toowoomba Regional Council is committed to delivering community-building projects while lending its voice to advocacy work helping local governments across Australia fight for, and receive, a fairer share of vital infrastructure funding.

We are determined to seize on the opportunities that will help us deliver essential services and lifestyle features across our towns, our city and our Region.

Gaining a fairer portion of the financial pie will ensure our communities continue to be places where ambition meets opportunity.

Council is responsible for managing an asset base of more than $7 billion, which highlights the extent of the financial task before us.

Our financial management will continue to focus on balancing affordability for residents while delivering essential services. Council’s current credit rating of Sound with a Neutral outlook is assessed by Queensland Treasury Corporation, with the annual review currently in progress. The 2024-2025 results place Council in a strong position to maintain this rating.

After becoming the first local authority in Queensland to implement the new State financial sustainability framework in September 2023, it is pleasing to report that we received an unmodified audit on our current year financial sustainability ratios from the Queensland Audit Office. Council’s long term sustainability statement indicates we remain sustainable as we plan for the future.

Council recorded a $639,000 net operating surplus, partly due to the pre-payment of half of the 2025- 2026 Financial Assistance Grant from the Australian Government, in addition to achieving a raft of savings across the organisation.

Despite many competing demands, this achievement ensures Council retains a long-term financially sustainable outlook which gives business and industry the confidence to invest in our diverse Regional economy and support our jobs market into the future.

While recording a surplus was a welcome result, it again showed how reliant local authorities are on inconsistent grant payments to fund vital projects.

It reinforces our call for fair, timely and untied funding from the State and Australian Governments to help us deliver the services and facilities that our growing communities demand and deserve.

Local governments across Australia face immense pressures to balance growth with liveability, while managing ageing infrastructure across vast road, wastewater and water networks.

We are no different in this regard, as we look to manage similar demands across our infrastructure networks, including a Council network of nearly 6,700km of sealed and unsealed roads.

The requirement to complete the Cressbrook Dam Safety Improvement Project places additional pressures on our capacity to upgrade existing, ageing infrastructure.

We’ve always said we can afford to complete the Cressbrook Dam Safety Improvement Project, however, without significant state and federal government funding it is having a detrimental effect on our ability to deliver other important community projects.

This situation highlights that a review of funding for local government is needed urgently. The infrastructure funding cliff that has been mentioned for some time is here.

One of the most significant milestones in the reporting period was the announcement that our Region will play a pivotal role in the Brisbane 2032 Olympic and Paralympic Games. We are incredibly excited to be chosen as the official host of the equestrian events at the Toowoomba Showgrounds.

This opportunity not only places our Region on the global stage, but promises to bring substantial economic, social, and cultural benefits to our community. Our teams are already working hard to prepare, ensuring that our infrastructure and services are ready to welcome the world’s best athletes and visitors.

While we are excited to be a Brisbane 2032 venue, we must never forget that this dream began when the South East Queensland Council of Mayors came together with a vision to fast track the infrastructure our growing communities need. That vision still drives us today as we advocate for better transport connections, including future passenger rail between Toowoomba and Brisbane.

Our signature tourism event, the Toowoomba Carnival of Flowers continues to prosper. In 2024, the event drew a record 470,000 visitors (which was up 12% on the 2023 figures) and injected more than $29 million into our state’s economy (a 19% increase on the 2023 figures). The 2024 event also achieved 149,538 visitor nights, which was a 9% increase on the 2023 figures. 

In other positive economic news, our Region’s employment figures increased by 11,700 people in the reporting period, representing a 14.3% increase over the year, compared with 3.1% annual employment growth for Queensland. Our Region’s unemployment rate decreased to 2.7%, the third lowest in Queensland (down 1.1 percentage points), compared with Queensland’s annual unemployment rate of 4%.

This was complemented by a net increase of 545 registered businesses.

Council highlighted its support for local businesses and job creation by spending $194.3 million with Toowoomba Region suppliers in 2024-2025.

Council substantially completed its 2022 Flood Recovery Program, at a cost of approximately $300 million, which was jointly funded by the Australian and Queensland Governments’ Disaster Recovery Funding Arrangements (DRFA). The Program delivered repairs to more than 1,500 roads and replaced 119 damaged culverts and floodways across the Toowoomba Region.

We allocated $159 million to local suppliers and contractors as part of our 2022 Flood Recovery Program, highlighting our commitment to support our business community.

Along with much of southern Queensland, our disaster preparedness was tested in March 2025 by ex-Tropical Cyclone Alfred, which affected parts of our Region. While the storm brought significant wind, rainfall and disruption, I am proud of the way our community and Council staff responded.

Through the combined efforts of emergency services, local businesses and volunteers, we have been able to recover quickly. The resilience of our community continues to shine brightly in the face of adversity, and I extend my gratitude to everyone who played a role in our recovery efforts.

I convey my thanks to Councillors for their dedication and passion with which they serve our community.

I also thank all staff who delivered essential services right across our Region despite uncertainty relating to changes in leadership.

This dedication was epitomised by the fact that staff completed 93% of actions that were required under our Operational Plan. This is a commendable achievement.

I acknowledge the service of former CEO Brian Pidgeon who retired in January 2025 after more than 12 years in the role and 46 years in local government.

I also acknowledge Council’s Executive Leadership Team who served in the Acting CEO role before the appointment of our Interim CEO, former Brisbane City Council CEO, Colin Jensen.

Mr Jensen guided the organisation across four months in readiness for the arrival of our new CEO, Sal Petroccitto OAM, who has more than 30 years’ executive leadership experience across public and private sectors with a focus on delivering cultural transformation and strategic outcomes in complex environments.

We live in an amazing place where we celebrate 36 towns and Australia’s largest inland city apart from Canberra, all of which contribute to a diverse, productive and attractive Region where ambition meets opportunity

Mayor Geoff McDonald

Annual Report 2023-24.pdf(PDF, 4MB)

Annual Report 2022-23.pdf(PDF, 8MB)

Annual Report 2021-22.pdf(PDF, 8MB)

Annual Report 2020-21.pdf(PDF, 10MB)

Annual Report 2019-20.pdf(PDF, 7MB)

Annual Report 2018-19.pdf(PDF, 9MB)

Annual Report 2017-18.pdf(PDF, 10MB)

Annual Report 2016-17.pdf(PDF, 7MB)

Toowoomba is built within a total water catchment area covering 56 square kilometres, featuring two main creeks – East and West Creeks – that meet just north of the CBD to form Gowrie Creek.

East Creek forms at the top of Middle Ridge, runs through Ballin Drive Park, the Waterbird Habitat and Garnet Lehmann Park.

It then flows downstream of Garnet Lehmann Park to form Lake Annand and then flows into the concrete-lined channel running parallel to Kitchener Street from Perth Street to Herries Street.

After running through a series of ponds, it cuts across the bottom corner of Queens Park, under Hume Street, and then flows in a narrow channel parallel to Chalk Drive. The creek passes under Ruthven Street where it meets West Creek to form Gowrie Creek.

The other arm, West Creek, starts at Kearneys Spring and runs down through a series of detention basins and continues into the city centre.

It runs through the City Golf Club, opposite Toowoomba Hospital, behind the PCYC down to Herries Street. It then runs parallel to Dent Street, behind the old library then under Margaret Street and then parallel to Victoria Street, under Russell Street where it meets East Creek to form Gowrie Creek.

The East Creek Masterplan has been under development for a number of years. The strategy for Gowrie Creek and subsequent reviews all recommend, as a priority, the construction of detention basins in the East Creek catchment and channel improvements along East Creek between James and Herries Street. Ballin Drive and Garnet Lehmann parks were identified as the best locations due to available size and mitigation capacity.

The masterplan includes upgrading of road crossings and channels as well as various options for detention measures. It also considers planning aspects such as land acquisition that can reduce the likelihood and consequences of flooding. When funding became available for flood mitigation works, the masterplan was expedited, completed and formalised.

The Masterplan offers an over-arching and cost-effective plan for reducing and managing flood hazards and providing flood mitigation works in East Creek while minimising impacts to parks and open space areas.