Council also plans to introduce a fixed charge rate of $250 instead of a minimum rate as a mechanism so every ratepayer makes a contribution to the cost of council services.

The report Alexandrina Council Review of the Rating System, prepared by Skilmar Systems Pty Ltd, says it would introduce a differential rate on vacant land by taking the general rate and adding 100 per cent on top.

The report says under the proposed changes, the increase in the rate in the dollar for vacant land will result in most vacant land properties receiving an increase in rates.

"The bulk of vacant land properties will receive an increase in the range of 40 and 50 per cent, or a range of $200 and $300," the report says.

A total of 2,213 properties are recorded as vacant, and only 103 properties will receive a decrease in rates as a result of the move to a fixed charge.

Under the proposed regime, a vacant allotment valued at $100,000 would have paid $860.96 this financial year, had the regime been implemented in the 2011/2012 financial year.

In comparison, a house valued at $300,000 would have paid $1166.44.

However, any increases in excess of 50 per cent will be made better by the introduction of a general cap of 50 per cent on rate increases.

Council would like to maintain the current 17 per cent reduction in the general rate for primary production properties.

Nearly 11,000 properties across the district will have an increase in rates up to 20 per cent.

Goolwa District Ratepayers and Residents Association chairperson John Carter said under the proposed changes, not everyone has to pay more.

"If you are a primary producer you could receive a further nine per cent discount on top of the 17 per cent already in force," he said.