THe sHRINe oF REMEMBRANCE Managing the significance of the Shrine Lest forgetwe A Planning Scheme Reference Document July 2013 Prepared by Message Consultants Australia Pty Ltd with input from Lovell Chen. Published by Message Consultants Australia Pty Ltd Melbourne July 2013 © Message Consultants Australia Pty Ltd The copyright in this document is owned by Message Consultants Australia Pty Ltd. No part may be reproduced by any process except in accordance with the provisions of the Copyright Act 1968. 2 CONTENTS CONTENTS 3 EXECUTIVe SUMMARY 4 1 INTRODUCTION 6 1.1 Background contents6 1.2 Purpose 7 1.3 Approach 8 2 THe SHRINe aNd iTs cONTEXT 9 2.1 Location 9 2.2 Siting 9 2.3 Current redevelopment 12 2.4 Study areas 12 3 SIGNIFICANCe of tHe SHRINE 13 3.1 Historical significance 13 3.2 Architectural significance 14 3.3 Aesthetic significance 15 3.4 Social significance 15 4 HOw tHe SHRINE’s sIGNIFICANCe is pERCEIVEd 21 4.1 Aspect Vistas 23 4.2 Prospect views 25 4.3 Sense of place 27 5 HOw tHe SHRINE’s sIGNIFICANCe cOULd be cOMPROMISED 29 5.1 Aspect view intrusions 29 5.2 Prospect view impacts 32 5.3 Secondary building impacts 36 6 EXISTINg cONTROLs aNd pOLICY 38 6.1 Heritage controls 38 6.2 State Planning Policy Framework (SPPF) 39 6.3 Local Planning Policy Frameworks (LPPF) 39 6.4 Built form controls 40 7 MODELLINg pOTENTIAl iMPACTS 52 7.1 Three-Dimensional modelling 52 7.2 What the technical analysis shows 58 7.3 Key outcomes 59 8 RECOMMENDEd aPPROACH 62 Recommendation 1: State Planning Policy 62 Recommendation 2: Local Planning Policy 62 Recommendation 3: Type of control 62 Recommendation 4: Heights 63 Recommendation 5: Shrine Vista Computations Manual 65 Recommendation 6: Secondary built form considerations 65 Recommendation 7: Referrals and notification 65 3 ExecutiveEXEcutive SUMMARY summary This report has been prepared to inform the key viewpoints to build a picture of existing preparation of planning provisions within and potential impacts and their relationship the Melbourne, Port Phillip and Stonnington with existing planning controls within the three Planning schemes designed to protect the relevant planning schemes. significance of the Shrine of Remembrance as The report suggests that there are three main Victoria’s most important place of remembrance ways in which the significance of the Shrine and commemoration. could be compromised: The report provides a summary of the Shrine’s • By foreground and background (silhouette) significance and how this significance is intrusions into the axial views from the state perceived through views to and from the Shrine library; building as well as sensory experience within • By building height impacting the context and the Shrine Reserve. It provides analyses of the sense of place of the Shrine; and impact of built form and how this is managed • By secondary built form amenity impacts by the existing framework of planning controls such as reflectivity, shadows, signs and winds. around the Shrine. The investigations found that the use of the The analyses are based on an understanding Shrine Vista Control (which is derived from of how we perceive the built environment and the Shrine Vista Computations Manual) has draws on best practice from around the world successfully protected the vista to the Shrine in protecting views to important buildings, as down Swanston Street and St Kilda Road. well as urban design theory about how humans However, buildings in the background of this read buildings and built form. The technical vista affect the Shrine’s prominence in views analyses used 3-D modelling of various scenarios from points along this axis and there is a need and investigated viewlines from a number of to amend existing planning controls to ensure 4 the shrine of remembrance: Managing the significance of the Shrine that this effect is not made worse. I n addition, • Design and Development Overlays (DDOs) the scale of some buildings in proximity to the are considered the preferred planning tool Shrine Reserve, to the south and west, have an to manage built form around the Shrine, overbearing impact because of their height and but these need to be modified to remove Executive summary so the height of future buildings needs to be inconsistencies between their expression and managed to protect the unique sense of place application in the Cities of Melbourne, Port of the Shrine. The analyses also showed that Phillip and Stonnington. there is a lack of consistency in existing planning • The recommended approach to building controls and policy, in relation to views as well as heights suggests mandatory height limits in the secondary impacts mentioned above. proximity to the Shrine to the west, south The results of these investigations were that, west and south and discretionary preferred whilst historic and existing planning controls heights covering the wider context. These have largely been successful in protecting are shown in Figure 8.1 (on page 64). the Shrine vista, the increasing pressure for • The Shrine Vista Computations Manual must development in the area means that a more be correctly and consistently applied across sophisticated set of planning controls is required the entire computations area as a mandatory to protect the overriding significance of the requirement within the relevant DDO Shrine and Shrine Reserve. Amended planning controls. controls should protect a wider range of • The building and works requirements viewpoints against a range of built form impacts, of all DDO provisions for the area west providing greater certainty for the development of St Kilda Road should be updated to industry and the public and a more consistent include reflectivity/glare, signs, wind and approach across the three planning schemes overshadowing considerations. that cover the Shrine and its wider context. • Notification and referral arrangements Recommendations are set out in detail in for the Shrine of Remembrance Trustees Section 7 of the report and are summarised should be amended to recognise the below: mandatory controls recommended for areas in proximity to the Shrine and to reduce the • The State Planning Policy Framework should administrative burden. be amended to specifically identify theS hrine as Victoria’s largest and most important war These recommendations are based on memorial and include objectives to protect considerable technical analysis. This analysis and conserve its cultural significance. is not reproduced in detail within the report but rather the approach and key findings are • The Local Planning Policy Frameworks in explained, using illustrative material from the the City of Melbourne, Port Phillip and analysis where necessary. Stonnington Planning Schemes should be amended to reference the State significance of the Shrine and its landmark qualities. They should include specific objectives and strategies on how to manage the land to guide the decision-making process. Executive Summary 5 1 INTRODUCTION The Shrine of Remembrance (‘the Shrine’) is the The Advisory Committee’s recommendations pre-eminent place of remembrance in Victoria were: and is of great historical, architectural, aesthetic • To refuse the permit application due and social significance. to unreasonable impact on the cultural This report has been prepared to inform the significance of theS hrine of Remembrance. development and application of planning • For Heritage Victoria to consider reviewing controls and planning policy relating to the the Shrine’s Statement of Significance to protection of the Shrine within the Cities address the impact of external development of Melbourne, Port Phillip and Stonnington on the cultural significance of the Shrine. Planning Schemes. • That Amendment C125 be approved subject The report is based upon a detailed review of to changes. relevant planning controls around the Shrine Amendment C125, which lapsed in April 2010 that was undertaken in 2012 by Message and was replaced by Ministerial Amendment Consultants and Lovell Chen. It summarises the C155 to the Melbourne Planning Scheme, findings of this work and provides an overview introduced Design and Development Overlay of the significance of the Shrine, how this DDO58 to establish mandatory 60m (71mAHD) 1 significance is perceived, the potential built form height and 20m setback controls on this site. threats to the Shrine and its setting, and the Following the PAC’s recommendations, the rationale for implementing consistent planning Statement of Significance for the Shrine was controls to protect the significance of theS hrine. updated in 2009 and The Shrine Conservation Management Plan (CMP) was also renewed and 1.1 BACKGROUND updated in 2010. One of the recommendations of the revised CMP was that a review of the A review of planning controls around the Shrine existing planning controls be undertaken of Remembrance was initiated following the with the objective of ensuring that future discovery of an apparent oversight in the pre- development in the surrounding areas does not existing height controls for a site at 312-322 detrimentally impact on the Shrine. St Kilda Road in 2008. A process was also initiated by the Department A subsequent City of Melbourne Planning for Planning and Community Development Permit Application 2008/0758 for a large (DPCD) along with stakeholders, to resolve the building on the site triggered Melbourne issue of development and building envelope Planning Scheme Amendment C125, which controls around the Shrine. This report sought to introduce discretionary 60 metre summarises the work undertaken on behalf of height controls to the land. the Shrine Trustees, describes the key issues In 2009, the then Minister for Planning considered and the overall rationale for built established a Planning Advisory Committee form controls designed to better manage (PAC) to concurrently consider the proposed and protect the significance of theS hrine of amendment and the planning permit application. Remembrance. 6 the shrine of remembrance: Managing the significance of the Shrine 3. Height and setback controls on new buildings, 1.2 PURPOSE generally to the north, west and south of the Shrine (mainly in the form of Design and Most places of ‘reverence’ in our cities Development Overlays).