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DRAFT Prepared for JUNE 2020 Mansfield Shire Council

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Most of the analysis in this report was undertaken prior to the Global COVID-19 Pandemic. The ongoing economic, social, and environmental impacts of the pandemic are uncertain at this stage, however as new information comes to light it will inform preparation of the Mansfield 2040 later in the project.

© SGS Economics and Planning Pty Ltd 2021 This report has been prepared for Mansfield Shire Council. SGS Economics and Planning has taken all due care in the preparation of this report. However, SGS and its associated consultants are not liable to any person or entity for any damage or loss that has occurred, or may occur, in relation to that person or entity taking or not taking action in respect of any representation, statement, opinion or advice referred to herein. SGS Economics and Planning Pty Ltd ACN 007 437 729 www.sgsep.com.au Offices in Canberra, Hobart, Melbourne, Sydney

20190547 Mansfield 2040_Background and discussion paper_Technical Report 210323.docx

TABLE OF CONTENTS

ABBREVIATIONS VI

EXECUTIVE SUMMARY VII

1. INTRODUCTION 1

1.1 Project background and purpose 1 1.2 Council’s role in creating a more liveable Shire 4 1.3 Structure of this document 4 1.4 Key questions for the Mansfield Shire community 5

2. THE SHIRE OF MANSFIELD AT A GLANCE 7

2.1 The Shire of Mansfield 7 2.2 A short history of Mansfield 9 2.3 Demographic and household profile 11

3. MACROTRENDS AFFECTING MANSFIELD 19

3.1 Population change and distribution 19 3.2 An ageing Population 19 3.3 Climate change and variability 20 3.4 Structural changes to the economy 20 3.5 Trends in agriculture 21 3.6 Trends in tourism 22 3.7 COVID-19 and potential implications 22

4. POLICY CONTEXT 25

4.1 State and regional planning policy 25 4.2 Taungurung Country Plan 26 4.3 Mansfield policies and plans 27

5. SETTLEMENT AND HOUSING 39

5.1 The Shire’s towns and settlements 39 5.2 Housing 42 5.3 Capacity for future housing growth 48 5.4 Housing affordability 51 5.5 Absentee landholdings 55 5.6 Sensitive interfaces 57 5.7 Challenges and opportunities 58

6. ENVIRONMENT AND LANDSCAPE 61

6.1 Mansfield’s environmental values 61

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6.2 Natural hazards 75 6.3 Challenges and opportunities 78

7. BUILT ENVIRONMENT AND HERITAGE 81

7.1 Built environment 81 7.2 Places of cultural heritage significance 92 7.3 Challenges and opportunities 96

8. ECONOMIC DEVELOPMENT 99

8.1 An overview of business and employment in Mansfield 99 8.2 The visitor economy 100 8.3 Mansfield’s commercial and industrial precincts 101 8.4 Preliminary discussions with local businesses 104 8.5 Challenges and opportunities 105

9. AGRICULTURE 109

9.1 An overview of agriculture in Mansfield 109 9.2 Agriculture outlook 113 9.3 Lot sizes and land ownership 114 9.4 Challenges and opportunities 119

10. TRANSPORT 121

10.1 The Shire’s transport connections 121 10.2 How do people get around Mansfield today? 131 10.3 Challenges and opportunities 131

11. INFRASTRUCTURE 134

11.1 Community infrastructure 134 11.2 Open space 140 11.3 Waste, water, telecommunications and energy infrastructure 142 11.4 Telecommunications, electricity, and gas 144 11.5 Fluctuating populations and demand for infrastructure 145 11.6 Challenges and opportunities 147

12. IMPLICATIONS FOR MANSFIELD 2040 150

12.2 Next steps 153

APPENDIX A: MANSFIELD PLANNING SCHEME 154

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LIST OF FIGURES

FIGURE 1: POLICY HIERARCHY 2 FIGURE 2: PROCESS FOR DEVELOPING THE STRATEGY 3 FIGURE 3: ICONIC VIEWS EAST TO THE ALPINE NATIONAL PARK ALONG MOUNT BULLER TOURIST ROAD 7 FIGURE 4: FLOODPLAINS AROUND MACS COVE AND HOWQUA AREA, NEAR LAKE EILDON 7 FIGURE 5: THE SHIRE OF MANSFIELD, IN CONTEXT 8 FIGURE 6: TAUNGURUNG COUNTRY 9 FIGURE 7: HISTORIC AND FUTURE POPULATION GROWTH 11 FIGURE 8: NUMBER OF DWELLINGS* 14 FIGURE 9: TOTAL DWELLINGS (BASED ON DE-IDENTIFIED RATEPAYERS) 14 FIGURE 10: NUMBER OF UNOCCUPIED DWELLINGS, BASED ON CENSUS COUNT* 15 FIGURE 11: NUMBER OF NON-RESIDENT RATEPAYERS (DEIDENTIFIED) 15 FIGURE 12: AGE PROFILE BY SERVICE AGE GROUPS, 2006 TO 2036 16 FIGURE 13: PLACE OF USUAL RESIDENCE FIVE YEARS AGO, 2016 16 FIGURE 14: INDUSTRY OF EMPLOYMENT, 2016 17 FIGURE 15: PLANNING ZONES IN MANSFIELD SHIRE 30 FIGURE 16: SELECTED PLANNING OVERLAYS IN MANSFIELD SHIRE 32 FIGURE 17: PLANNING OVERLAYS – BUSHFIRE MANAGEMENT OVERLAY 33 FIGURE 18: HUME REGIONAL GROWTH PLAN SETTLEMENT FRAMEWORK 40 FIGURE 19: LAND ZONED FOR RESIDENTIAL USE 43 FIGURE 20: LOT SIZES IN THE RURAL LIVING ZONE 44 FIGURE 21: PLANNING APPROVALS FOR NEW DWELLING CONSTRUCTION, 2009 TO 2020 45 FIGURE 22: POPULATION BY FAMILY TYPE, 2016 TO 2036 47 FIGURE 23: ESTIMATE OF HOUSING CAPACITY, 2020 48 FIGURE 24: HOUSE PRICE GROWTH COMPARISON, 2006 TO 2016 51 FIGURE 25: NUMBER OF HOUSEHOLDS EXPERIENCING RENTAL STRESS, 2016 53 FIGURE 26: LOCATIONS OF NON-RESIDENT RATEPAYERS BY LGA 55 FIGURE 27: NON-RESIDENT RATEPAYERS BY LGA - TOP 15 56 FIGURE 28: PUBLIC LAND, STATE AND NATIONAL PARKS IN MANSFIELD SHIRE 62 FIGURE 29: BIOREGIONS IN MANSFIELD SHIRE 63 FIGURE 30: WATERWAYS AND FLOOD-PRONE LAND ACROSS MANSFIELD SHIRE 65 FIGURE 31: DECLARED WATER SUPPLY CATCHMENTS 66 FIGURE 32: PRE-1750 MODELLED VEGETATION COVERAGE (ECOLOGICAL VEGETATION CLASSES) 68 FIGURE 33: 2005 VEGETATION EXTENT (ECOLOGICAL VEGETATION CLASSES) 69 FIGURE 34: VIEW EAST ALONG MOUNT BULLER ROAD, FROM THE CENTRAL VICTORIAN UPLANDS TO THE HIGHLANDS AND VICTORIAN ALPS LANDFORMS 70 FIGURE 35: REMNANT RIVER RED GUMS ON PRIVATE PROPERTY PROVIDE NATURAL LANDMARKS IN SHORT- AND MEDIUM-RANGE VIEWS THROUGHOUT THE UPLANDS 70 FIGURE 36: PICNIC SPOT NEAR LAKE EILDON 71 FIGURE 37: GENTLY ROLLING PLAINS SOUTH OF MANSFIELD 71 FIGURE 38: ICONIC VIEWS ACROSS LAKE EILDON, FROM GOUGHS BAY 72 FIGURE 39: FARMLAND WITH LONG-RANGING VIEWS TO WELL-VEGETATED HILLS, BETWEEN JAMIESON AND MANSFIELD 72 FIGURE 40: LANDSCAPE FEATURES ACROSS THE MANSFIELD LGA 73 FIGURE 41: LAKE EILDON BOATING AND FACILITIES MAP 74

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FIGURE 42: BUSHFIRE MANAGEMENT OVERLAY 76 FIGURE 43: MANSFIELD TOWNSHIPS AND SETTLEMENTS 83 FIGURE 44: MANSFIELD TOWNSHIP LOT SIZES 85 FIGURE 45: BONNIE DOON LOT SIZES 86 FIGURE 46: LOT SIZES IN MAINDAMPLE (LEFT) AND JAMIESON (RIGHT) 89 FIGURE 47: LOT SIZES IN GOUGHS BAY (LEFT) PLUS HOWQUA AND MACS COVER (RIGHT) 89 FIGURE 48: MERRIJIG AND SURROUNDS (TOP) PLUS MERTON (BOTTOM) 90 FIGURE 49: PLACES COVERED BY THE HERITAGE OVERLAY IN MANSFIELD 93 FIGURE 50: PLACES RECOGNISED UNDER THE HERITAGE OVERLAY IN MANSFIELD TOWNSHIP (LEFT) AND JAMIESON (RIGHT) 94 FIGURE 51: AREAS OF ABORIGINAL CULTURAL HERITAGE SENSITIVITY 95 FIGURE 52: COMMERCIAL AND INDUSTRIAL PRECINCTS IN MANSFIELD TOWNSHIP 102 FIGURE 53: EMPLOYMENT AND OUTPUT, MANSFIELD SHIRE, 2015-16 110 FIGURE 54: GROSS VALUE OF AGRICULTURE, MANSFIELD SHIRE 110 FIGURE 55: AGRICULTURAL LAND VERSATILITY 111 FIGURE 56: SOIL TYPES 112 FIGURE 57: FARMING ZONE LOT SIZES 116 FIGURE 58: FARMING ZONE LAND OWNERSHIP 117 FIGURE 59: CENTRAL HUME SUB-REGION TRANSPORT NETWORK 121 FIGURE 60 NORTH EASTERN REGIONAL VICTORIA TRAIN AND COACH NETWORK MAP 122 FIGURE 61: ROADS BY MANSFIELD SHIRE ROAD STATUS 126 FIGURE 62: MANSFIELD TOWNSHIP FOOTPATH NETWORK 128 FIGURE 63: TRANSPORT AND TRAILS ACROSS MANSFIELD SHIRE 130 FIGURE 64: COMMUNITY FACILITIES IN THE MANSFIELD TOWNSHIP 135 FIGURE 65: BONNIE DOON (LEFT) AND JAMIESON (RIGHT) COMMUNITY FACILITIES 136 FIGURE 66: MANSFIELD STATION PRECINCT ACTIVATION PROJECT CONCEPT MASTER PLAN - PREFERRED OPTION 137 FIGURE 67: MANSFIELD TOWNSHIP OPEN SPACE AND RECREATION INFRASTRUCTURE 141 FIGURE 68: BONNIE DOON (LEFT) AND JAMIESON (RIGHT) OPEN SPACE AND RECREATION INFRASTRUCTURE 142

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LIST OF TABLES

TABLE 1: COMPARISON OF FORECAST POPULATION GROWTH MANSFIELD AND REGIONAL VICTORIA 11 TABLE 2: HOUSEHOLDS IN MANSFIELD SHIRE AND REGIONAL VICTORIA, 2016 12 TABLE 3: PROPORTION OF UNOCCUPIED PRIVATE DWELLINGS, AND NON-RESIDENT RATEPAYER DWELLINGS, BY SUBURB ACROSS MANSFIELD’S URBAN AREAS AND SMALLER SETTLEMENTS 13 TABLE 4: OCCUPATION, 2016 17 TABLE 5: RESIDENTIAL ZONES THAT APPLY IN MANSFIELD SHIRE 42 TABLE 6: HISTORIC AND FORECAST CHANGE IN POPULATION 2006 TO 2016 AND 2016 AND 2036 46 TABLE 7: DWELLING DEMAND, 2016 TO 2036 47 TABLE 8: HOUSING CAPACITY BY ZONE (REPORTED AS TOTAL NUMBER OF LOTS) 49 TABLE 9: TOTAL DEMAND FOR SOCIAL AND AFFORDABLE HOUSING, 2016 53 TABLE 10: RENTAL STRESS BY HOUSEHOLD TYPE, 2036 54 TABLE 11: BIOREGIONAL CHARACTERISTICS IN MANSFIELD SHIRE 64 TABLE 12: LANDSCAPE AND ENVIRONMENT OVERLAYS IN MANSFIELD SHIRE 67 TABLE 13: TOWNSHIP CHARACTER 87 TABLE 14: OPPORTUNITIES AND CHALLENGES BY EMPLOYMENT LOCATION 106 TABLE 15: LOT SIZES AND LAND OWNERSHIP SIZES, FARMING ZONE 115 TABLE 16: MANSFIELD TRACKS, TRAILS AND BRIDLEWAYS 129 TABLE 17: SHIRE OF MANSFIELD COMMUNITY INFRASTRUCTURE 137

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ABBREVIATIONS

DELWP Department of Environment, Land, Water and Planning ESO Environmental Significance Overlay FZ Farming Zone GBCMA Goulburn Broken Catchment Management Authority GRZ General Residential Zone GVW Goulburn Valley Water IBRA Interim Biogeographic Regionalisation for Australia MSS Municipal Strategic Statement MUZ Mixed Use Zone PPF Planning Policy Framework RLZ Rural Living Zone SLO Significant Landscape Overlay TCAC Taungurung Clans Aboriginal Corporation TZ Township Zone VHR Victorian Heritage Register VPO Vegetation Protection Overlay VPP Victoria Planning Provision

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EXECUTIVE SUMMARY

The Mansfield Shire is preparing a planning strategy for the municipality, Mansfield 2040. Development of Mansfield 2040 is a significant undertaking for the Shire and its communities. The Strategy will guide land use and development decisions across the municipality over the long term.

Introduction Mansfield Shire’s population is growing, and its demographic profile is shifting. The broader economy is moving towards services-based and knowledge-intensive sectors, and the impacts of climate change are increasingly being felt. While change is inevitable, it is important that it is managed in a way that ensures the ongoing health and prosperity of existing communities, and preserves Mansfield Shire’s valued historic, cultural, and natural living landscape for future generations. This includes having a clear plan for where people will live, where they will access services, how the local economy will prosper, and how the environment can be sustainably managed to mitigate and minimise the impacts of climate change, protect landscape and promote biodiversity, alongside other immediate concerns. Mansfield Shire Council (Council) has committed to developing Mansfield 2040 (the Strategy) to help manage change across the Shire over the long term. The purpose of the strategy is to:

▪ Facilitate orderly development of urban land uses that makes effective use of existing infrastructure and responds to environmental constraints.

▪ Protect areas of agricultural productivity and environmental significance and sensitivity, and areas subject to natural hazards.

▪ Identify the need for additional infrastructure to service changing communities.

▪ Enable change that appropriately responds to the valued character and qualities that distinguish each of the municipality’s townships and settlements. Mansfield 2040 will provide a land use planning framework for the Shire, so that it can:

▪ Respond to the changing needs of residents and businesses.

▪ Develop urban land in an orderly way, making effective use of existing infrastructure.

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THE MANSFIELD 2040 WILL PROVIDE THE OVERARCHING POLICY DIRECTION FOR FUTURE COUNCIL PLANS AND STRATEGIES

The Strategy will operate as an ‘umbrella’ document that brings together findings from other parallel studies like the Mansfield Environment Strategy, Mansfield Economic Development Strategy, Mansfield Waste Strategy and Mansfield Commercial and Industrial Land Use Strategy, as well as the upcoming Open Space Strategy and Community Vision project to update the Council Plan (in 2021). The policy directions of Mansfield 2040 will be implemented into the Mansfield Planning Scheme via a planning scheme amendment process, including local policies about commercial land, housing, local town character, the environment, significant landscapes, and so on.

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Project method

Method and key project stages The project background work commenced in 2020 and it will run until late-2021. The project team consists of SGS Economics and Planning, RMCG and RCI Planning. The team will work with Council to prepare Mansfield 2040. An overview of the project, key stages and anticipated timing is shown in the figure below. THE MANSFIELD 2040 WILL BE DEVELOPED OVER EIGHT STAGES

Community engagement Council is keen for people to share ideas and provide feedback on Mansfield 2040 as it is being prepared. The purpose of collecting community feedback is to ensure that the vision and actions can be developed and refined with residents, business owners and others who have an interest in the future of Mansfield Shire. The project has been staged to allow two opportunities for people to learn about the technical parts of the project and ask lots of questions. The first stage is to review this document. The community’s input will help the project team and Council to:

▪ Identify core values that stakeholders and community members wish to protect, promote, or grow.

▪ Identify a vision for sustainable development in Mansfield Shire.

▪ Identify potential immediate and long-term planning challenges.

▪ Test planning recommendations identified as part of the research and consultation phase.

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Context for strategic planning

Demographic and household profile In 2016, the Shire had a population of 8,400. While the population is small, it is growing. Driven by its proximity to Melbourne and its attractive lifestyle offering, the population of the Shire has risen from approximately 6,600 in 2006 and is expected to further increase to almost 11,000 by 2036.1 This pace of growth is expected to be higher than that for regional Victoria to 2026 (at about 1.2 to 1.6 percent on average per year) but will slow to 2036 as total population increases. There are more than 4,000 households in the Shire. Mansfield has a high proportion of couple families without children; 50 percent in 2016 compared with 43 percent across the rest of regional Victoria. Family composition has remained relatively stable in the Shire over time, experiencing only a small increase in couple families with children and a comparative increase in lone parent households. Mansfield Shire has between 6,500 and 6,800 dwellings, with Mansfield township accommodating the greatest number of dwellings of the towns and settlements in the Shire. The Shire’s other main town is Bonnie Doon, with several smaller settlements, including Goughs Bay and Jamieson. The greater number of dwellings compared to resident households is an indicator of the high proportion of non-resident landowners and holiday homes across the Shire, which are especially concentrated around Lake Eildon, and in the hinterland of the Mount Buller Alpine Resort. In 2016, the median age of people in Mansfield was 48 years (compared with 43 in regional Victoria), having risen from 44 years in 2006. Population forecasts show that this trend of population ageing will continue, with 31 percent of the population anticipated to be of retirement age by 2036 (compared to 23 percent in 2016). 70 percent of people are in the labour force. Of those, 54 percent work full-time, 31 percent work part time, 6 percent were away from work, and 6 percent were unemployed. This is like the employment status of workers across regional Victoria. The largest industry of employment in the Shire is agriculture, employing some 620 people in 2016. Industries closely related to the tourism and population serving sectors are also significant employers. Mansfield Shire has a higher proportion of employed people who work as managers, technicians, and trades workers, and a lower proportion of professionals, than regional Victoria as a whole.

Macrotrends affecting Mansfield Shire The Shire’s planning and development are influenced by external drivers including population trends, climate variability, technology change, patterns in living choice as well as shifts in agriculture and trade. Mansfield’s development will also be affected by COVID-19, particularly through its impacts on the tourism industry. In recent years, there has been (anecdotally) a trend towards telecommuting, with some non-resident landowners moving permanently to Mansfield and working remotely, either part- or full-time. The COVID-19 Pandemic has effectively intervened to stall Australia’s population growth (due to border closures) and disrupt its economy, including accelerating working from home trends, particularly for professionals and those in some service sectors. In Mansfield Shire, there may be a permanent increase in the number of people seeking to telecommute from lifestyle locations, leading to a (perhaps small) increase in holiday homes becoming people’s permanent residence as workplaces entrench flexible practices, provided this is supported by appropriate telecommunications infrastructure. Australia’s population is ageing, and the proportion of people aged over 65 is increasing. A key infrastructure challenge for Victoria’s ageing population will be to ensure that there is sufficient accommodation that meets the diverse needs of each community. This will include growing demand for smaller dwellings (units and apartments), aged care facilities and assisted living communities. In the right locations, housing diversity helps to facilitate better allocation of housing, by providing people with more choice around downsizing homes within their communities.

1 Victorian Government (2019), Victoria in Future.

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Climate change will result in increased fire danger, increased number of extreme heat days, long term drought, increased energy access variability, and increased incidence of flooding. The climate variability may also impact tourist destinations such as Mansfield due to longer or shorter periods for both winter and summer recreation. Victoria’s economy has become increasingly integrated into the global economy. As such, it is increasingly impacted by global and local trends, including technological innovations, environmental pressures, geopolitical developments and the emergence of Asia as the centre of the global economy. These global trends are driving shifts in the structure of the national and state economies. In particular, the economy is continuing to shift towards creative and population-led sectors and away from traditional industries, such as manufacturing. These growing sectors are consolidating in and around central business areas and major economic nodes and transport corridors. However, the COVID-19 pandemic and other factors suggest the effects of globalisation may be slowing. These factors include:

▪ The cost of moving goods has stopped falling.

▪ Multinational firms have found the cost of global sprawl (including fragmented and ‘just in time’ supply chains) untenable, including when competing against local rival firms.

▪ Activity is shifting towards services, which are harder to sell across borders. In the agricultural sector, output for sheep and cattle meat remain high, driven by continuing export demand. Across the industry, there is a trend towards larger farm size and concentration of agricultural output on larger livestock businesses. This trend is consistent with restructure across most agricultural industries resulting in production concentrated amongst a smaller number of producers An increasing trend in tourism towards ‘experiential’ travel (away from more sedentary or ‘resort-based’ approaches) offers potential for rural and regional areas. This trend is driving products that are adventurous, personalised, attuned to local culture. The tourist accommodation industry has also been impacted by transformation in the short-stay market through websites such as Airbnb. The global pandemic COVID-19 may also have significant impacts on the way Australians and Victorians live, work, and are integrated into the global economy in future. Further reflections on how the effects of the pandemic may influence Mansfield Shire are included later.

Policy settings State and local plans summarised in this section establish a policy framework under which the Mansfield 2040 will sit. Some of the key issues identified include the need to ensure there is sufficient housing supply (quantity, and type of housing) for residents across the Shire, the need to adapt to the effects of climate change, or to diversify the local economic base.

State policy ▪ Plan Melbourne 2017-2050 emphasises that the state government will continue to invest in regional Victoria, to support housing and economic growth, enhance social and economic participation, and to support healthy communities. It emphasises that growth in rural townships should be in keeping with the character of those places, and balanced with the protection of productive land, economic resources and biodiversity assets.

▪ The Hume Regional Growth Plan identifies the Mansfield Township as a place where moderate population growth is expected to occur. The Plan highlights that most growth in the region will be directed into Wangaratta and Benalla, as larger service centres. The Plan identifies regional issues, many of which affect the Mansfield Shire: climate change, the need for residential, commercial and industrial land, protection of agricultural industries, transport and community connectivity, environmental protection, natural hazard management, and economic diversification.

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into existing urban places, or where land capability for agriculture is low). The policy supports tourism activities that add value to agriculture, such as cellar door and farm-gate sales.

Local policy The Mansfield Planning Scheme identifies several issues for the Shire:

▪ Maintaining the role of Mansfield township as the main town, supplying most housing, attracting commercial/retail and industrial growth, and ensuring there is enough land supply to meet demand. ▪ Providing a diversity of housing choices including medium density housing and 'lifestyle' opportunities on rural living land, while balancing the pressure this latter form creates for improved services and infrastructure in rural areas. ▪ Protecting productive agricultural land and addressing the pressure to use it for other purposes than farming. ▪ Supporting the continued growth of the agricultural sector, including supporting the diversification of the agricultural base. ▪ Protecting European and Aboriginal heritage. ▪ Protecting the Alpine approaches as major transport and tourism routes. ▪ Adapting to a changing climate and protecting sensitive and environmentally valuable landscapes. ▪ Protecting and where possible improving water quality. ▪ Maintaining the natural resource base and amenity is critical to long term sustainability. ▪ Managing flooding and bushfire risks to development, pest plants and animals on private and public land. ▪ Diversifying the economic base, particularly tourism to provide for year-round opportunities. ▪ Supporting traditional and emerging forms of agriculture, and 'clean and green' industries as alternatives to the traditional forms of industry. ▪ Maximising eco-tourism opportunities. ▪ Planning for reticulated infrastructure in urban areas and assessing this in smaller towns.

Summary of key themes examined in this report

Settlement and housing Regarding housing, the following challenges have been identified and are to be considered when preparing the draft Mansfield 2040:

▪ Population growth to 2036 will result in demand for an additional 1,094 dwellings across the Shire by 2036. There is substantial capacity within existing residentially zoned areas to accommodate this demand. This includes sufficient capacity within urban and rural residential areas.

▪ The excess capacity for residential development given the identified demand (in the order of 120 years supply) risks continued fragmented, uncoordinated and costly urban growth, with infrastructure servicing requirements on multiple fronts and likely significant cost implications for Council. The challenge is to develop a framework for orderly growth, supported by an infrastructure funding plan.

▪ A considerable share of recent housing growth has occurred within the Farming Zone. Ad hoc or unplanned development in productive agricultural areas that is unrelated to the agricultural use of the land has implications for the local housing market and the amenity of residents, not to mention its impacts on high value agricultural production.

▪ While household incomes have been growing in the Shire, growth has not kept pace with rising housing costs. The purchase prices of housing increased at 4 percent per annum between 2011 and 2016, while mortgage repayments increased at 5.1 percent per annum and rent by 4 percent per annum.

▪ Declining housing affordability is resulting in an increasing number of households experiencing rental stress. Without intervention, the gap in provision of social and affordable housing will increase to 378 dwellings by 2036.

▪ There is a high rate of absentee landowners in Mansfield LGA compared with other regional areas. While the purchase of holiday and second homes by residents form outside of the municipality supports the local economy, it can place additional pressure on the affordability of the housing market for locals.

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▪ Insufficient planning scheme guidance to reduce interface issues between existing and future residential and non-residential uses such as farming uses, industrial uses, commercial uses, major roads, township approaches and environmental assets.

Environment and landscape ▪ Climate change poses significant challenges to the Mansfield Shire, to its environmental and biodiversity values, capacity for primary production, and as a tourism destination. Wetting and drying regimes are shifting, with longer, hotter, and drier summers. Heavy rainfalls have potential to cause flash flooding and exacerbate erosion issues, especially where land has been cleared.

▪ Over 60 percent of land in Mansfield Shire is publicly owned and managed, by various agencies including the State government, Mansfield Shire Council, Catchment Management Authorities, and Parks Victoria. Some crown land is used for softwood timber plantations and harvesting (around Lake Eildon, Spring Creek, and the Blue Range, for example), while most is forested and designated as State/National Park and State Forest. The scenic landscape values across the Shire are iconic, and many are nationally renowned. Public access to and recreation in Mansfield’s forests, mountains and along rivers is highly valued, and these destinations are popular both during winter snow seasons and in summer.

▪ In the more densely settled areas, there are major threats to biodiversity. These include the lack of linkages between forest blocks; and the continued decline in the quality and extent of grassy woodlands and forests due to changes in land-use; and the quality of large forest blocks due to the effects of changes in fire regimes.

▪ Erosion is also a major threat to local biodiversity, although organic matter decline, soil acidification, contamination, compaction, salinisation and biodiversity decline are all also threats in this social- ecological system (SES). Pest plant and animal invasion is a further threat.

▪ Major invasive species that affect the land in this SES are rabbits and deer, which cause erosion and prevent regeneration of native species. A major plant threat is Blackberry, which clogs waterways, overtakes agricultural land, and provides harbour for rabbits.

Built environment and heritage As a rural municipality, Mansfield’s built environment is characterised by rural towns and villages set within an agricultural and natural landscape setting. Many towns have large open spaces, street trees and well-established vegetation, and waterways nearby, creating an attractive atmosphere around township and rural residential settlements. The following challenges have been identified, regarding the Shire’s environment and landscape values:

▪ Lack of identification of the Shire’s heritage assets, including Aboriginal cultural heritage.

▪ There is a lack of documentation and research into the significance of the extant built heritage of Mansfield.

▪ Rural and regional centres have several unique characteristics when compared with metropolitan or typical suburban development. The differences stem from their historical development, and stages of residential growth. In Mansfield Township, there are several growth fronts extending into the surrounding rural lifestyle and farming areas that are not well-connected back into town.

▪ In Mansfield, infill development may change the urban character in some places.

Economic development ▪ The ageing population will increase the need to attract greater numbers of younger residents to avoid labour market constraints.

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▪ A growing population is resulting in ongoing demand for new housing in the Shire. In some areas, the emergence of residential development is creating conflict with existing employment uses.

▪ The Shire’s popularity as a holiday and recreation destination results in large, seasonal fluctuations in the population. This high variability places pressure on local businesses and emphasises the need for greater diversification.

▪ While the Shire has strengths in tourism, the sector is highly susceptible to the impacts of climate change, and other natural disasters such as bushfire.

▪ Limited capacity of the Mansfield District Hospital, a lack of health practitioners and limited aged-care services and facilities has placed a strain on the healthcare sector with negative consequences for the liveability of the Shire.

▪ There is limited appropriately zoned industrial land, and the commercial zone in Mansfield township applies to a large, dispersed area. Industrial areas that were formerly on the fringe of the urban area are also now located close to newer residential subdivisions, creating buffer and interface issues that limit industrial potential.

▪ There are cases where the current zoning of employment land does not align with its current use or employment capability, including the area zoned for Mixed Use along Crosby’s Lane and the Stock Route/ Saw Mill Site currently zoned for industrial uses.

▪ There is a high degree of land fragmentation across the Shire raises concern for the ongoing, productive use of agricultural land for the traditional mainstays of broad hectare livestock grazing. There is some potential for more intensified agricultural pursuits such as viticulture and hydroponics

▪ There is a lack of transport connectivity to support the movement of workers and goods within the Shire, to surrounding regions and beyond. This lack of connectivity also affects community resilience, where most services are clustered in Mansfield, or further afield in Benalla and Wangaratta.

Agriculture ▪ Agriculture remains a significant contributor to the local economy with the major agricultural pursuits being timber processing, pasture seed production, wool production, prime lamb and beef production.

▪ At a macroeconomic level, demand for beef and slaughter lambs is primarily driven by demand form international markets, namely China and the Middle East. Consequently, the industries are increasingly export oriented and influenced by movements and trends in international markets

▪ There is a high degree of land fragmentation across the Shire which raises concern for the ongoing, productive use of agricultural land for the traditional mainstays of broad hectare livestock grazing.

▪ Small lots in farming areas commonly raise expectations amongst landholders that they will be able to construct a dwelling. Unfettered dwelling development in rural areas has several significant consequences; raising competition, and consequently prices, of productive farming land, creating land use conflicts, and syphoning development from areas already identified as appropriate for rural living.

▪ The PPF provides clear policy guidance for the protection of productive agricultural land, including protection from conflict with inappropriate land use in rural areas and the consolidation of small lots to ensure viable farm sizes.

Transport ▪ Mansfield Shire is located off the principal corridor, the Hume Highway, which connects Melbourne and Sydney. This corridor is the focus for state government investment in transport infrastructure, population growth and service provision.

▪ There is limited public transport linking the Shire to neighbouring centres and connecting the towns and settlements within Mansfield to one another. This is a concern for groups who are more dependent on public transport to access necessary services, such as younger people and the elderly.

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▪ There are several important but unsealed road connections within the Shire that have been identified as a deterrent to tourists and cyclists. Unsealed connections also pose risks for the safe evacuation of residents during an emergency.

▪ The connectivity of the Great Victorian Rail Trail into the Mansfield township could be improved

▪ New residential areas in Mansfield township are not well connected to the central business area, and key community destinations. Pedestrian and cycling connections need to be improved.

▪ Climate change is likely to impact the Shire’s transport infrastructure, including increasing incidence of maintenance and replacement. Transport infrastructure will need to be designed/ upgraded to withstand rising temperatures and drier conditions, as well as increasingly severe weather events (such as bushfire and flooding).

▪ Existing urban areas have limited connectivity for active travel (footpath and cycling networks).

Infrastructure ▪ There are resourcing challenges to ensure efficient infrastructure provision, given multiple potential development fronts within existing zoned urban areas.

▪ There are challenges ensuring ongoing water supply and security and reducing overreliance on a single source of drinking water, particularly within the context of ongoing population growth and climate change.

▪ The Mansfield Wastewater Treatment Plant is at capacity and requires an upgrade to accommodate ongoing housing development, and to limit downstream impacts form additional nutrients for the unplanned discharges.

▪ Parts of the Mansfield township are unsewered (approximately 20 percent) but they pose a small environmental and community risk, given the lack of active management

▪ The existing urban layout of Mansfield is not sympathetic to natural drainage lines and the town’s drainage scheme is inadequate in some areas and poses risks to public safety and property from major flow events. Climate change will significantly impact the intensity of rainfall events and will further exacerbate existing urban flood areas

▪ There has been significant informal encroachment of major drainage lines such as houses, fences, gardens and sheds and there is a lack of flood awareness within the community. Highton Lane is a major development area that will put more pressure on existing drainage. Encroachment issues are also present with key water, waste and energy facilities, where appropriate buffers may not be in place.

▪ The energy supply and telecommunications services can be unreliable across the Shire.

▪ Seasonal population fluctuations add another level of complexity to planning for infrastructure, considering many areas have between 40-60 percent or more holiday homes.

COVID-19 and potential implications This report was prepared during the COVID-19 pandemic. At the time of writing, the impacts of COVID19 are still unfolding and no detailed data on the long term impacts, or the likely form of recovery, was clearly known. However, through analysis of early economic indicators and trends some potential impacts relevant to the Mansfield Planning Strategy are apparent. Dependent on how the pandemic unfolds and the government’s response there are five possible scenarios: ▪ Shallow recession – if the virus is rapidly contained and the economy is able to quickly open back up. ▪ Large recession and rapid recovery – A quick bounce back after restrictions are lifted

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▪ Large recession and normal recovery ▪ Deep recession and normal recovery ▪ Deep recession and slow recovery This potential economic impact will play out differently by sector and location. Further, some will be short sharp impacts (i.e. those associated with enforced business closures during lockdown) while others may result in prolonged structural effects on the economy (i.e. increased requirement for local manufacturing of key goods). The following outlines a few potential key sector implications of relevance to the Mansfield Planning Strategy.

The demand for local manufacturing Retail could experience a shift aware A shift away from ‘just in time’ supply could increase as business want greater from ‘bricks and mortar’ models and chains could mean that business hold certainty for their supply chains. This more towards on-line sales. much more stock than is currently the means that there would be less imports This could reduce the demand for case. This would include the demand for and more domestic production. conventional retail space but open up additional warehouse floorspace. This would increase the demand for more demand for retail / wholesale type employment floorspace as spaces well suited to online delivery. manufacturers increase production. Under a deep recession and slow Tourism was immediately affected due Households may increase working in recovery, there could be a 1 million less to lockdown. Social distancing and stay- alternative locations. This has already than projected people in Victoria in at-home orders mean many people in been identified by some remote workers 2046. sectors like hospitality and short-stay in Mansfield, who formerly owned Less population growth across Victoria accommodation have lost their main holiday homes and now live in the Shire would reduce residential development source of income. Domestic tourism may full-time. Such a trend of telecommuting which in turn could impact on the flourish immediately after restrictions lift could expand in a post-lockdown setting number of populations serving jobs. given international travel constraints. as ways of working flexibly/remotely are This would decrease the demand for Longer-term flow-on effects may include more strongly entrenched in workplaces. employment floorspace. a reduction in conservation efforts in nature- and adventure-based tourism This could result in more people living destinations due to a lack of funding and possibly working from the home from tourism investment. around Mansfield; a trend already identified prior to the COVID pandemic.

GDP is expected to decline in 2019-20 following the 2019-20 summer bushfires and COVID-19. The Australian economy is forecast to be in recession in the short term, while medium term prospects depend on stimulus decisions and the global economy. Analysis undertaken by SGS forecasts the economic decline to vary across Australia in depth and length with the economic structures and resource availability of regions and cities affecting outcomes. Municipalities with significant mining and agricultural industries which have been impacted less by social distancing measures may experience economic growth. Municipalities which rely on tourism will experience a sharper economic impact due to travel and gathering restrictions. How the economic impacts play out spatially will therefore depend on the structure of the local economy. The following provides a snapshot of the potential short- term impacts on local GDP estimates. This early analysis suggests over the short term the Mansfield Shire is likely to experience a drop in GDP of between 7.5 to 10 percent because of the COVID-19 pandemic (see map below).

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LOCAL GOVERNMENT AREA FORECASTED GDP GROWTH FOR 2019-20.

Source: SGS Economics and Planning, 2020.

Further information about the economic impacts of COVID-19 and 2019-20 bushfires here: https://www.sgsep.com.au/publications/insights/the-economic-impact-of-covid-19-and-bushfires

Emerging narrative and implications for Mansfield 2040 This background review has revealed several challenges and opportunities. These will inform possible directions in Mansfield 2040, to be developed in the next phase of the project.

While the population in Mansfield Shire is relatively small, it is dispersed across a large area and several settlements The Shire’s economy is principally based on primary production, the regional service role of the Mansfield township and tourism. While the population is small, it is growing, underpinned by its proximity to Melbourne and its attractive lifestyle offering, the population of the Shire has risen from approximately 6,600 in 2006 to 8,400 in 2016 and is expected to further increase to almost 11,000 by 2036. While the Mansfield township contains about 35 percent of the Shire’s population, due to its popularity as a lifestyle destination, there are several small settlements scattered throughout the Shire; with some in remote locations. As in many regional areas, this poses a challenge for Council, to provide accessible community services, and meet infrastructure expectations of community members across these dispersed settlements. Another challenge for Council is to equitably manage exaggerated peak demands for infrastructure during holiday seasons. Expectations and needs vary between the permanent, non-resident, and tourist populations and these need to be balanced when making servicing and infrastructure decisions.

A clear town hierarchy is needed, to direct Council’s limited resources for infrastructure, reticulated services and community buildings equitably As highlighted above, Mansfield’s population is concentrated in and around the Mansfield Township, and smaller towns such as Bonnie Doon, Jamieson and Goughs Bay. The remainder of the population is distributed across several small settlements, and the rural area. A clear town hierarchy could help Council determine how to best direct resources to equitably meet the service and infrastructure needs of the population. However, this may also establish a need for improved transport, or possibly community transport options, from smaller towns and settlements connecting people to services and facilities they need. The need for a recognised town hub that could support visiting services would remain an important aspect of Mansfield’s towns (for example, within an existing community hall). Such spaces could accommodate satellite or drop-in services.

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A centres or towns hierarchy and its implications for the delivery of social and community facilities, including their scale and feasibility, with overlapping considerations about access, and irregular servicing for community hubs, would need to be further explored (for example, through a Community Infrastructure Planning process).

At present, there are multiple growth fronts around the Mansfield Township placing significant demand on local infrastructure The supply of residential land across Mansfield Shire (and concentrated in the Mansfield Township) is sufficient to allow for more than 120 years’ growth, based on the forecast population growth in the Shire. With multiple growth fronts accommodating modest growth around the Mansfield town centre, Council faces a challenge to provide sufficient footpath networks, traffic management works, community services, and reticulated infrastructure to meet the community’s needs in and around the town. In the past, there hasn’t been a clear direction for where housing growth should be targeted or how development should be appropriately staged to allow for coordinated infrastructure provision.

The agricultural sector makes significant contributions to the local economy in terms of jobs and total industry output; however, land fragmentation threatens the sustainability of the industry. Agriculture supports more than 350 jobs and $60 million in total industry output, with the value of the industry increasing over time. Assessment and mapping of land suitability shows that most of the private land in Mansfield is suitable for agriculture, mainly for livestock grazing and some cropping. Broader trends in the industry reveal a positive outlook for sheep and cattle meat production driven by export markets, and a shift towards a concentration of agricultural output on larger livestock businesses. There are a large number of lots in the Farming Zone that are under the state-wide default of a 40 hectare lot size, and many less than 20 hectares in size. While many of these smaller lots are held as part of larger tenements, this high degree of fragmentation poses a risk to the ongoing viability of the traditional agricultural mainstays of broad hectare sheep and cattle grazing due to potential for ownership transfer and/ or dwelling construction. However, the introduction of more intensified agricultural pursuits such as viticulture and hydroponics may mean that some lots less than 40ha in farming zoned areas of the Shire can be used sustainably.

More than a third of recent planning permits for dwelling development have been for the construction of houses in the Farming Zone. Rural living is desirable for a range of reasons and a significant draw for new homeowners to the Shire (for example, the potential for hobby farming, a sense of remoteness, the attractive landscape setting). However, dwelling development in the Farming Zone, which is not directly associated with the agricultural use of the land, has the potential to compromise the continued use of land for productive agriculture. This trend can also lead land price increases, fragmentation, and land conversion. Residential use of farming lots can exacerbate interface issues between non-farming lots and agricultural activities. Expectations of new migrants in an agricultural landscape of a benign rural environment also create land use and associated amenity conflicts with surrounding agricultural uses due to the use of chemical sprays, noise and smells form livestock, for example. Likewise, leakage of residential development from designated rural living areas reduces the viability of development in these areas and further stretches Council’s infrastructure and servicing resources. Median weekly rents have been increasing rapidly in the Shire, resulting in a growing need for social and affordable housing Rapidly rising rents are contributing to a growing number of renter households and families in the Shire experiencing rental stress. The prevalence of rental stress is likely to increase as the Shire’s population grows. If the State Government continues to adopt a relatively passive approach to investment in social housing, and the number of social housing dwellings in Mansfield remains stable, it can be expected that this gap in provision will increase to 378 houses by 2036.

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Addressing this shortfall in demand for social and affordable housing would require 35 per cent of future dwellings to be social and affordable rental dwellings.2

The supply of urban employment (industrial and commercial) land across the Shire is poorly defined, at capacity, or constrained by its location, creating challenges for the local economy to capture new sectors According to the Commercial and Industrial Lands Strategy (CILS), which is currently being prepared, the industrial land supply across Mansfield Shire has been exhausted for some time. In Mansfield township, industrial precincts which were once on the fringe of town, are now located adjacent to residential growth areas, introducing interface issues where industrial and sensitive residential areas abut one another. The current configuration does not allow sufficient buffers, meaning the potential for flexible industrial activities is limited. Around Mansfield township, the land zoned for commercial uses extends beyond the urban core, containing several community and residential buildings. This poses challenges for agglomeration, diluting activity in Mansfield’s urban centre. The CILS will involve further investigation into how the location and configuration of commercial and industrial land will be managed into the future. This would include considering how precincts can be integrated with the town to ensure urban services are accessible, while creating opportunities to capture interregional export opportunities. It would also address how to harmonise and create a hierarchy of commercial and industrial activities, so they may be appropriately located to reach their optimal role in the local economy.

Environmental hazards, land clearing and climate change have the potential to undermine Mansfield’s significant biodiversity values, leading to environmental degradation Across Mansfield’s extensive areas of public land, major threats to biodiversity include invasive plant and animal species (including deer, rabbits and Blackberry), erosion, bushfire, and polluted runoff from private land. On private land, extensive land clearing, loss of trees and vegetation cover also contributes to habitat loss, erosion, and land slip, as well as exacerbating heat effects. Mansfield 2040 will support the findings from the Mansfield Environmental Strategy, to ensure environmental landscapes are extended and protected where possible.

Environmental impacts also have the potential to undermine Mansfield’s tourism industry, leading to greater economic vulnerability Mansfield Shire is a rural area renowned as a holiday destination, and gateway to the Alpine National Park. The tourism sector was severely impacted by bushfires over summer 2019-20. Firefighter deployment elsewhere in the State forced closure of popular campgrounds across the Shire and prevented the usually large summer tourist influx. Climate change is also threatening the length of the snow season, a major attractor for winter tourists. The impacts of climate change also affect the viability of different agricultural activities.

2 It is noted that high house prices and rising monthly mortgage repayments are likely contributing to an increasing number of households experiencing mortgage stress. However, addressing mortgage stress requires policy solutions that are typically outside of the control of local government. As a result, this report is primarily focused on rental stress in Mansfield LGA.

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resource management, and the project will further consider the need for different funding models that could address such challenges – for example, development contributions plans, or special rates schemes. Mansfield 2040 will further consider the implications from this emerging narrative, to establish recommendations and directions for how to manage land use and development challenges in the future.

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WHAT MANSFIELD 2040 CAN AND CAN’T DO Many of the issues raised above have implications that extend to disciplines or areas of government beyond land use planning. As a strategic land use plan, Mansfield 2040 is primarily concerned with influencing, controlling or directing changes in the use of land and development, however, the Strategy will be an important launching point and guide for future work undertaken across Council and within the community (as discussed above). The points below outline the intended scope of Mansfield 2040

Mansfield 2040 can: ▪ Recommend patterns of zoning to ensure that the provision of land matches expected demand, state government requirements, and supports a properly functioning market.

▪ Provide clear policy direction to prevent development in areas where is it not compatible with other uses, is not sustainable and or does not meet the expectations of the community.

▪ Identify and seek to protect through zoning, overlays and policy, features of the Shire that are valued by the community, including landscape and environmental values, urban character and heritage places.

▪ Suggest grant and funding mechanisms including methods for collecting development contributions, to enable funds to be raised for infrastructure as development incrementally occurs across townships.

▪ Identify items of advocacy for Council to higher levels of government related to land use planning (for example, major infrastructure items that cannot be funded by Council without support).

▪ Identify gaps in infrastructure and service provision and suggest project delivery timing and priority for Council investment.

▪ Identify areas where further work could be undertaken.

▪ Express support for community-led initiatives.

Mansfield 2040 cannot: ▪ Force developers to provide development that is not feasible.

▪ Dictate to a highly detailed level the types of businesses or forms of development that occur. For example, it is up to the market to decide whether a bar or an office is developed in the Commercial 1 Zone.

▪ Alter current land use or development regulations under the current Mansfield Planning Scheme regulations. Any recommended changes because of Mansfield 2040 would require further preparation of a Planning Scheme Amendment, where further community input would also be invited.

▪ Tackle labour market, skills and community development challenges that are not related to strategic and land use planning.

▪ Provide a detailed infrastructure and asset management plans, including specific project costs and timing.

▪ Commit Council budget to transport or other infrastructure projects.

Next steps The next phase of this project is to talk to the community about Mansfield Shire and its future. The aims of community consultation are to explore and expand upon the challenges and opportunities identified in this background work, and to test emerging implications or findings that will shape the Planning Strategy. Council has recently launched a project website, and further information will be shared online: https://haveyoursay.mansfield.vic.gov.au/mansfield-planning-strategy.

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1. INTRODUCTION

The Mansfield Shire is preparing a planning strategy for the municipality, Mansfield 2040. Development of the Mansfield 2040 is a significant undertaking for the Shire and its communities. The Strategy will guide land use and development decisions across the municipality over the long term.

1.1 Project background and purpose Mansfield Shire’s population is growing, and its demographic profile is shifting. The broader economy is moving towards services-based and knowledge-intensive sectors, and the impacts of climate change are increasingly being felt. While change is inevitable, it is important that it is managed in a way that ensures the ongoing health and prosperity of existing communities, and preserves Mansfield Shire’s valued historic, cultural, and natural living landscape for future generations. This includes having a clear plan for where people will live, where they will access services, how the local economy will prosper, and how the environment can be sustainably managed to mitigate and minimise the impacts of climate change, protect landscape and promote biodiversity, alongside other immediate concerns. Mansfield Shire Council (Council) has committed to developing Mansfield 2040 (the Strategy) to help manage change across the Shire over the long term. The purpose of the strategy is to:

▪ Facilitate orderly development of urban land uses that makes effective use of existing infrastructure and responds to environmental constraints.

▪ Protect areas of agricultural productivity and environmental significance and sensitivity, and areas subject to natural hazards.

▪ Identify the need for additional infrastructure to service changing communities.

▪ Respond to the changing needs of residents and businesses.

▪ Develop urban land in an orderly way, making effective use of existing infrastructure.

▪ Adapt to any challenges brought about by growth or environmental pressures such as flooding and bushfire. The Strategy will be developed in consultation with the community and inform the direction of the Council Plan (due to be updated in 2021), and the Municipal Health and Wellbeing Plan. It will provide overarching policy guidance, setting the big picture and long-term direction for the municipality. The Strategy will operate as an ‘umbrella’ document that brings together findings from other parallel studies like the Mansfield Environment Strategy, Mansfield Economic Development Strategy, Mansfield Waste Strategy and Mansfield Commercial and Industrial Land Use Strategy, as well as the upcoming Open Space Strategy and Community Vision project to update the Council Plan (in 2021). The policy directions of Mansfield 2040 will be implemented into the Mansfield Planning Scheme via a planning scheme amendment process, including local policies about commercial land, housing, local town character, the environment, significant landscapes, and so on. The Strategy will set principles for managing potential or proposed major changes to land use, infrastructure and built form, by identifying preferred directions for growth and considering what might change in the municipality between now and 2040. The Strategy will direct the anticipated provision of residential, retail, and industrial development to meet the long-term needs of the Mansfield Shire community.

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Importantly, the strategy will allow Council to plan more effectively, to prioritise planning actions and deliver infrastructure over the longer-term.

FIGURE 1: POLICY HIERARCHY

How will the Strategy be used? The Strategy will set a clear vision and direction for towns in the Mansfield Shire. It will be a policy document, used to communicate with landowners, investors, government agencies, business operators and Council about preferred locations for investment and change, and areas that need to be protected and enhanced (for example, public open space or places with important environmental values). The Strategy will also make recommendations about how the Mansfield Planning Scheme may be amended to reflect its vision and planning principles (for example, potential changes to local policies, planning zones or overlays). It may also outline some further work required (for example, preparation of a development contributions plan to fund infrastructure) to achieve the Strategy’s vision.

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Method and key project stages The project will run from now until mid-2021. In March, a project team was appointed consisting of: SGS Economics and Planning, RMCG and RCI Planning. The team will work with Council to prepare the Planning Strategy. An overview of the project, key stages and anticipated timing is:

FIGURE 2: PROCESS FOR DEVELOPING THE STRATEGY

Community engagement Council is keen for people to share ideas and provide feedback on the Mansfield 2040 as it is being prepared. The purpose of collecting community feedback is to ensure that the Mansfield 2040 Planning Strategy vision and actions can be tested and refined with residents, business owners and others who have an interest in the future of Mansfield Shire. The project has been staged to allow two opportunities for people to learn about the technical parts of the project, and ask lots of questions. The first stage is to review this document. The community’s input will help the project team and Council to:

▪ Identify core values that stakeholders and community members wish to protect, promote, or grow

▪ Identify a vision for sustainable development in Mansfield Shire

▪ Identify potential immediate and long-term planning challenges; and

▪ Test planning recommendations identified as part of the research and consultation phase.

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1.2 Council’s role in creating a more liveable Shire Local government in Victoria has a legislative obligation to: “Provide good governance in its municipal district for the benefit and wellbeing of the municipal community.”3 Councils are tasked with representing community interests when making decisions or advocating to other tiers of government, and for encouraging participation in community life through planning, services and local law making. Councils in Victoria are also responsible for setting goals and directions to help communities achieve maximum health and wellbeing. Councils do this by promoting equity, partnering with services and other government partners, and undertaking activities to reduce health inequalities. The three main statutory documents Councils must produce, deliver, and report to the community are:

▪ The Council Plan: Sets out the commitments of Council for each four-year electoral term.

▪ The Municipal Health and Wellbeing Plan: Facilitates community health and wellbeing during Council’s four-year electoral term.

▪ The Municipal Strategic Statement (MSS): Part of the Mansfield Planning Scheme, the MSS outlines the key planning, land use and development objectives for the municipality and the actions for achieving them. The purpose of this project (preparing Mansfield 2040) is to provide an overarching, evidence based and forward- thinking tool, guiding the development of these statutory documents to 2040. The Strategy will contain a vision for spatial planning in the Mansfield Local Government Area. Under the Planning and Environment Act [1987], Council is required to review its Planning Scheme on a regular basis. The Planning Strategy project will also guide the future Planning Scheme review.

1.3 Structure of this document The purpose of this Background and Discussion Paper is to provide a snapshot of the Shire of Mansfield today, and how Mansfield might look and function in the future. The paper explores six land use and development themes in turn, summarising what we currently know from research and the results of community consultation processes undertaken to date. The report is structured as follows:

▪ Chapters 2 to 4 contain background information, about the Shire’s history and demographic profile, macrotrends affecting Mansfield, and the state and local government policy context.

▪ Chapter 5 examines settlement and housing, looking at recent growth, housing development and housing capacity across the Shire.

▪ Chapter 6 contains information about the Shire’s environment and landscape values, including natural hazards.

▪ Chapter 7 presents built environment and heritage considerations, including a summary of township character across the Shire’s settlements.

▪ Chapter 8 looks at economic development, including the visitor economy, business and employment, and the commercial and industrial precincts across the Shire.

▪ Chapter 9 contains information about transport, its inter-regional connections, local roads, tracks and trails.

▪ Chapter 10 examines infrastructure provision, looking at community infrastructure, open space, waste, water, telecommunications, and utilities.

3 Local Government Act 1989 (Vic.)

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1.4 Key questions for the Mansfield Shire community This Background and Discussion Paper is the basis for the first round of project engagement. It is intended to spark a conversation about the future of the Shire, presenting a series of questions and consideration to prompt and guide conversation. The document Throughout the Strategy development process, there will be several opportunities for community feedback and discussion. As it becomes available, new information and opportunities to provide feedback will be posted on Council’s You Say website, alongside contact details for the project manager at council: https://haveyoursay.mansfield.vic.gov.au/mansfield-planning-strategy.

KEY QUESTIONS FOR CONSULTATION

▪ What do you value most about Mansfield Shire?

▪ What (if anything) is impacting the things you value in Mansfield Shire?

▪ How do you imagine Mansfield in the future? What would you like to achieve?

▪ Are there information gaps?

▪ How has COVID-19 affected the way you think about Mansfield Shire and its future?

▪ What challenges and opportunities has COVID-19 raised for you, in a Mansfield Shire context?

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2. THE SHIRE OF MANSFIELD AT A GLANCE

Mansfield Shire has a unique cultural and natural landscape, shaped across thousands of years of history. This section overviews the key features of the municipality and surrounds, provides a brief account of the history of the land that today comprises the Shire, and profiles the residents and workers of Mansfield.

2.1 The Shire of Mansfield The Shire of Mansfield is located 200 kilometres north-east of Melbourne, Victoria in a wide valley surrounded by mountain ranges. To the west lie the Strathbogie Ranges and The Paps; north-west, Mount Samaria; north, the Tolmie Plateau; east the Great Divide with Mounts Buller, Stirling and Timbertop (or Warrambat as it was called); and to the south, the low hills of the Blue Range. Natural environment features within Mansfield Shire are the Alpine National Park and Australia’s second largest inland waterway – Lake Eildon. Mansfield Shire boasts major river systems, lakes, mountains, vast tracts of what is referred to as ‘High Country’, and broad, productive valleys where agriculture and rural living integrate. The major urban centre of Mansfield Shire is the Mansfield township, with several smaller settlements scattered across the municipality. These include Mansfield, Tolmie, Sawmill, Kevington, Jamieson, Woods Point, Merrijig, Maindample, Ancona, Merton, Barjarg, Goughs Bay, Bonnie Doon, Macs Cove and Howqua. Each of the municipality’s settlements and townships has its own unique history and sense of identity.

FIGURE 3: ICONIC VIEWS EAST TO THE ALPINE NATIONAL PARK FIGURE 4: FLOODPLAINS AROUND MACS COVE AND HOWQUA ALONG MOUNT BULLER TOURIST ROAD AREA, NEAR LAKE EILDON

Source: SGS Economics and Planning, 2020. Source: SGS Economics and Planning, 2020.

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FIGURE 5: THE SHIRE OF MANSFIELD, IN CONTEXT

Source: SGS Economics and Planning (2020)

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2.2 A short history of Mansfield The landscape formed 500 million years ago, through a series of massive changes caused by tectonic forces, erosion, volcanic activity, climate change and water flows. Today the municipality extends across the lands of the Traditional Owners, the Taungurung people who have lived there for tens of thousands of years and remain connected to these landscapes today. Taungurung Country encompasses all of the Mansfield Shire Council and extends from east of Heathcote, towards Rushworth and Euroa in the north, down to near Mount Buller and as far south as Marysville and Kilmore. The landscape contains many places that represent the past and present lives of the Taungurung; places for ceremonies and cultural events, story places, an old greenstone axe quarry, and food gathering and harvesting places.4

FIGURE 6: TAUNGURUNG COUNTRY

Source: Taungurung Country Plan, 2015.

From the mid-1830s, following the arrival of European settlers, Taungurung People, like other Aboriginal people throughout Australia, were severely impacted by dispossession and colonisation. Dispossession saw many Taungurung forcibly moved off Country and into Protectorate stations or living on runs, into Missions and reserves. As policies of removal were introduced, Taungurung People were prevented access to Country, cultural sites and practices, medicines, food, language and eventually their own family members.5 Sacred sites, traditional foods, traditional camping grounds, traditional water and medicines became increasingly difficult to access and in many cases were destroyed. New diseases, foods, plants, animals, and land management practices were also introduced.6

4 Taungurung Clans Aboriginal Corporation, Taungurung Country Plan, 2015. Available from URL: https://www.gbcma.vic.gov.au/downloads/Traditional_Owners/Taungurung_CountryPlan_WEB.pdf. 5 Mansfield Historical Society, History of Mansfield, n.d. Available from URL: http://www.mansfieldhistoricalsociety.com.au/?page_id=15. 6 Mansfield Historical Society, History of Mansfield, n.d. Available from URL: http://www.mansfieldhistoricalsociety.com.au/?page_id=15.

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During the 1840s settlers occupied land west of Mansfield and by the end of the decade occupation had spread eastwards. The town of Mansfield was first established in 1850 at the intersecting boundaries of four pastoral stations at Fords Creek. It became a convenient stopping place, and the following year land was set aside there for a surveyed township.7 By 1856 gold had been discovered at the Jamieson River south of Mansfield, and in 1861 it was discovered at Woods Point. The most suitable route for transporting mining machinery was through Mansfield. Small amounts of gold were also discovered around Mansfield.8 The Mansfield district was proclaimed a Shire on 31 December 1866, by when the township also had two hotels, a court house, a steam flour mill and a hospital. In addition to sheep grazing, Mansfield had dairying (butter factory opened in 1893) and cultivation for oats, potatoes and fruit.9 In 1919 part of the Howqua shire was added to Mansfield shire, increasing its area by half. As well as adding mining areas to the shire, Howqua had large forest areas.10 The Mount Buller Ski Club opened as a tourist resort during the 1920s. Westwards, the development of Lake Eildon as a boating and recreation site has also brought tourists to Mansfield.11 On 18 November 1994, Mansfield shire was united with Benalla shire, Benalla city and part of Violet Town shire to form Delatite shire. Eight years later Delatite shire was divided into two (‘demerged’) and a new shire of Mansfield emerged.12

7 Ibid. 8 Ibid. 9 Ibid. 10 Ibid. 11 Ibid. 12 Ibid.

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2.3 Demographic and household profile The data presented in this section is based on the 2016 ABS Census, and the Victoria in Future (VIF) population projections (2019) which are maintained by the Department of Environment, Land, Water and Planning (DELWP).13

Population growth In 2016, the Shire had a population of 8,400. While the population is small, it is growing. Driven by its proximity to Melbourne and its attractive lifestyle offering, the population of the Shire has risen from approximately 6,600 in 2006 to 8,400 in 2016 and is expected to further increase to almost 11,000 by 2036.14 This pace of growth is expected to be higher than that for Regional Victoria to 2026 but will slow to 2036.

FIGURE 7: HISTORIC AND FUTURE POPULATION GROWTH

Source: ABS and Victoria in Future (VIF) 2019.

While only very modest in terms of the total number, this increase in population represents a significant pace of growth and one of the fastest growth rates in the state. This growth in population will create demand for an approximately 2,300 dwellings between 2016 and 2036.

TABLE 1: COMPARISON OF FORECAST POPULATION GROWTH MANSFIELD AND REGIONAL VICTORIA

2017 2019 2021 2026 2031 2036 Mansfield Shire 8,796 9,112 9,379 9,968 10,485 10,966 AAGR 1.4% 1.5% 1.4% 1.2% 1.0% 0.9% Regional Victoria 1,477,678 1,516,909 1,555,792 1,651,850 1,746,970 1,838,637 AAGR 1.3% 1.3% 1.3% 1.2% 1.1% 1.0% Source: ABS and Victoria in Future (VIF) 2019.

13 At the time of writing, DELWP were currently preparing updated VIF projections which consider the impacts of COVID-19. 14 Department of Environment, Land Water and Planning (DELWP) (2019), Victoria in Future (VIF).

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The population of Mansfield Shire is concentrated in the Mansfield Township, and in its other main towns: Bonnie Doon, Jamieson and Goughs Bay. Other smaller settlements record high numbers of vacant dwellings during the Census, illustrating that these places have a higher proportion of holiday homes. The maps below illustrate where population is concentrated in the Shire, and where there are higher numbers of holiday homes.

Households There are more than 4,000 households in the Shire. Mansfield has a high proportion of couple families without children; 50 percent in 2016 compared with 43 percent across the rest of regional Victoria. Family composition has remained relatively stable in the Shire over time, experiencing only a small increase in couple families with children and a comparative increase in lone parent households. 85 percent of one parent families have a female as the head of the household. This is higher than in regional Victoria, where 81.6 percent of one parent households are headed by a female.

TABLE 2: HOUSEHOLDS IN MANSFIELD SHIRE AND REGIONAL VICTORIA, 2016

Household type Mansfield Shire Mansfield Shire Regional Victoria 2016 2006 2016

Couple family with children 37.4% 36.3% 39.6% Couple family with no children 50.0% 50.1% 42.9% One parent family 11.5% 12.5% 16.2%

Other family 1.1% 1% 1.3% Total 100% 100% 100% Source: ABS Census data (2016).

The average household size has remained stable over time at around 2.2 people per household, slightly lower than regional Victoria (2.4 people per household). The number of dwellings owned outright or with a mortgage have been increasing at a faster rate than the number of rental dwellings. In total, 74.7 percent of all houses are owned while 19 percent are rented. The proportion of renting households is lower than across the rest of regional Victoria at 25 percent. 18 percent of households do not have access to the internet at home. The is comparable with other regional areas in regional Victoria.

Dwelling distribution Mansfield Shire has between 6,500-6,800 dwellings, with most development concentrated in Mansfield Township. The Shire’s other main town is Bonnie Doon, alongside several smaller settlements, including Goughs Bay and Jamieson. There is a high proportion of non-resident landowners and holiday homes across the Shire, especially concentrated around Lake Eildon, and in the hinterland of the Mount Buller Alpine Resort. Overleaf, Figure 8 to Figure 11 show the Census count for number of occupied and total dwellings, by locality (2016), compared to the number of dwellings and non-resident ratepayers recorded in Council’s records (de-identified). Comparing the first two, and the second two maps, provides an indication of the suburbs across the Shire where there is likely to be a higher proportion of permanent residents, or where the localities are likely to have a higher proportion of holiday homes. A comparison of the data suggests:

▪ 22.8 percent of dwellings in Mansfield are owned by non-resident ratepayers, with around 17 percent unoccupied in the Census data (2016)

▪ Around Lake Eildon, the proportion of dwellings owned by non-resident ratepayers is much higher, suggesting a higher incidence of holiday homes: Bonnie Doon (66.9 percent), Goughs Bay (67.9 percent), Mountain Bay (70.5 percent), Macs Cove (72 percent), and Howqua (88.4 percent). A list of the key Mansfield Shire localities and smaller settlements alongside these figures, is presented in Table 3.

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TABLE 3: PROPORTION OF UNOCCUPIED PRIVATE DWELLINGS, AND NON-RESIDENT RATEPAYER DWELLINGS, BY SUBURB ACROSS MANSFIELD’S URBAN AREAS AND SMALLER SETTLEMENTS

Census count (2016) Council rates count (de-identified) Non-resident % Non-resident Unoccupied Total private Dwellings count % Unoccupied landowner landowner private dwellings dwellings* (rates) Locality dwellings dwellings Mansfield 401 2,332 61.7% 575 2,519 22.8% Bonnie Doon 403 653 55.2% 563 841 66.9% Jamieson 260 389 39.2% 278 446 62.3% Goughs Bay 236 369 66.1% 265 390 67.9% Merrijig 230 417 71.4% 279 420 66.4% Merton 51 130 21.0% 93 192 48.4% Maindample 21 100 76.4% 37 129 28.7% Mountain Bay 37 56 54.8% 43 61 70.5% Macs Cove 86 129 63.6% 108 150 72.0% Howqua 42 66 50.6% 38 43 88.4% Woods Point 42 55 64.0% 66 98 67.3% Upper Delatite 120 168 66.8% 173 203 85.2% settlements^ Upper Goulburn 34 62 66.7% 84 124 67.7% Valley settlements^ Other localities 820 1621 42.5% 586 1,183 49.5% Total 2,783 6,547 61.7% 3,188 6,799 46.9% Source: ABS Census data (2016) and de-identified ratepayer data from Mansfield Shire Council. * Total private dwellings is the combined number of unoccupied, and occupied, private dwellings as counted in the Census (2016). ^ Upper Delatite Settlements comprise Sawmill Settlement, Alpine Ridge, and Pinnacle Valley. Upper Goublurn Valley Settlements comprise A1 Mine, Gaffneys Creek and Kevington

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FIGURE 8: NUMBER OF DWELLINGS* FIGURE 9: TOTAL DWELLINGS (BASED ON DE-IDENTIFIED RATEPAYERS)

Source: ABS Census, 2016. Source: SGS Economics and Planning, based on Mansfield Shire Council data, 2020. *Note: The land around Mount Buller Alpine Resort may show a higher dwelling count (>200) due to the number of buildings clustered in this location.

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FIGURE 10: NUMBER OF UNOCCUPIED DWELLINGS, BASED ON CENSUS COUNT* FIGURE 11: NUMBER OF NON-RESIDENT RATEPAYERS (DEIDENTIFIED)

Source: ABS Census, 2016. Source: SGS Economics and Planning, based on Mansfield Shire Council data, 2020. *The Census is taken in August, every five years. As this falls outside summer holiday period, the number of unoccupied dwellings may correlate with holiday homes; however it is noted that the ski season would still be in effect, meaning some holiday homes would likely be occupied by those home owners, or other tourists, on Census night.

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Age profile Figure 12 shows the changing FIGURE 12: AGE PROFILE BY SERVICE AGE GROUPS, 2006 TO 2036 age profile of the Shire. In 2016, the median age of people in Mansfield at 2016 was 48 years (compared with 43 in regional Victoria), having risen from 44 years in 2006. Population forecasts show that this trend of population ageing will continue, with 31 percent of the population anticipated to be of retirement age by 2036 (compared to 23 percent in 2016). Growth in the number of younger, working-age people has been much slower since 2006, with a small decline in Source: ABS and Victoria in Future (VIF) 2019. people aged between 45 and 54 experienced between 2006 and 2016.

Migration Data documenting the place a person usually lived five years before the 2016 Census shows that 1,750 people moved to the Shire in between 2011 and 2016. Figure 13 shows that the largest number of people who have recently moved to the Shire originated from overseas, followed by people who have relocated from the northern and eastern suburbs of metropolitan Melbourne.

FIGURE 13: PLACE OF USUAL RESIDENCE FIVE YEARS AGO, 2016

Source: ABS Census data (2016).

Mansfield has a lower proportion of residents born in Australia than across regional Victoria; 73.2 percent compared with 80.7 percent. The top countries of birth in Mansfield after Australia are: England, Germany, New Zealand and Scotland.

Work and education 70 percent of people are in the labour force. Of those, 54 percent work full-time, 31 percent work part time, 6 percent were away from work, and 6 percent were unemployed. This is similar to the employment status across regional Victoria. According to the 2016 Census, the Shire of Mansfield employed a total of 4,047 people. The largest single industry of employment is agriculture, employing some 620 people in 2016 (based on the ABS Census). Industries closely related to the tourism (e.g., accommodation and food services, 478), health (415) and education (391), and population-serving sectors (e.g., construction, 431, and retail, 515) also employ large numbers of people in Mansfield LGA.

FIGURE 14: INDUSTRY OF EMPLOYMENT, 2016

Source: ABS Census (2016).

The Mansfield LGA has a higher proportion of employed people who work as managers, technicians, and trades workers than regional Victoria, and a lower proportion of professionals.

TABLE 4: OCCUPATION, 2016

Mansfield Regional Victoria

Managers 18.1% 14.6% Technicians and Trades Workers 16.9% 14.8% Professionals 15.2% 17.1% Labourers 12.5% 12.4% Community and Personal Service Workers 10.9% 11.7% Sales Workers 9.9% 9.7% Clerical and Administrative Workers 9.8% 11.3% Machinery Operators and Drivers 5.1% 6.5% Source: ABS Census data (2016).

Twenty percent of residents are attending an educational institution, including 12 percent attending a tertiary institution (either TAFE or University).

3. MACROTRENDS AFFECTING MANSFIELD

Mansfield’s planning and development are influenced by external drivers including population trends, climate variability, technology change, patterns in living choice as well as shifts in agriculture and trade. Mansfield’s development will also be affected by COVID-19, particularly through its impacts on the tourism industry.

3.1 Population change and distribution Victoria’s population is forecast to reach 9.4 million over the next 30 years primarily driven by net overseas migration.15 This growth will be distributed unevenly across the state. Higher growth is expected in metropolitan areas (driven in part by Victoria’s continued shift to a knowledge-based economy) and on the fringe (where land is cheaper). In contrast, Melbourne’s middle ring and regional cities and rural towns are expected to see more muted growth, however regional areas that offer scenic rural lifestyle opportunities will continue to attract new residents. This scale of population growth will have implications for the implementation and prioritisation of major infrastructure, and the social and economic wellbeing of communities. Communities most vulnerable to income and wealth inequality include sole parents, older people, people dependent on government financial assistance and young people. Mansfield has experienced continuing growth over recent years, at one of the highest rates in regional Victoria. However, it is noted that this high rate is attributable to a low starting point. The rate of non-resident landowners is very high in the Shire, and places around Bonnie Doon, Goughs Bay/Lake Eildon and between Mansfield and Merrijig (on the way to Mount Buller) are key locations for holiday homes. In recent years, there has been (anecdotally) a trend towards telecommuting, with some non-resident landowners moving permanently to Mansfield and working remotely, either part- or full-time. Section 3.7 sets out how the COVID-19 Pandemic has effectively intervened in Australia’s population growth (due to border closures). In Mansfield, there may be an increase the number of people seeking to telecommute from lifestyle locations, leading to a (perhaps small) increase in holiday homes becoming people’s permanent residence as workplaces entrench flexible practices.

3.2 An ageing Population Across Australia, the population has been growing, and it has also been ageing, as the proportion of people aged over 65 increases. A key infrastructure challenge for Victoria’s ageing population is to ensure that there is sufficient accommodation that meets the diverse needs of each community. This includes smaller dwellings (units and apartments), aged care facilities and assisted living communities. Housing diversity helps to facilitate better allocation of housing, by providing people with more choice around downsizing homes within their communities. The national trend of an ageing population brings a greater need for health and aged care facilities as well as a workforce that supports them. The growing number of older Victorians will contribute to a decline in the workforce participation rate. However, more older Victorians will choose to work for longer compared to previous generations.

15 It is noted that these trends have been significantly affected by the COVID-19 Pandemic. Section 3.6 sets out potential impacts arising from COVID- 19, however the longer-term effects on population growth and the economy, among many other factors, are still emerging.

3.3 Climate change and variability Climate change is one of humanity’s greatest challenges. Globally, temperatures are rising and extreme weather events are becoming more frequent and severe. Projections indicate that these trends will continue down the same path in the absence of action.16 Climate change will result in increased fire danger, increased number of extreme heat days, long term drought, increased energy access variability, and increased incidence of flooding. The climate variability may also impact tourist destinations due to longer or shorter periods for both winter and summer recreation.17 The Mansfield Environment Strategy 2019-23 outlines that the impacts on primary production, infrastructure, health and community and the environment may also include:

▪ Changed distribution of pests and diseases ▪ Changed pasture growth ▪ Reduced water security ▪ Reduced or failed regeneration of logged forests ▪ Increased maintenance costs ▪ Risks to tourists in unfamiliar conditions ▪ Increased stress on health and emergency services ▪ Amplification of existing threats to biodiversity and changed habitats ▪ Contraction of alpine ecosystems.18 While climate change will bring significant costs and uncertainty, there may be opportunities from a positive climate-smart outlook for agriculture. This new method of agriculture may be beneficial for the Shire given a changing environment caused by climate change.

3.4 Structural changes to the economy Victoria’s economy has become increasingly integrated into the global economy. As such, it is increasingly impacted by global and local trends. These include:

▪ Technological innovations ▪ Geopolitical developments ▪ Environmental pressures ▪ The emergence of Asia as the centre of the global economy ▪ Demographics such as population ageing and migration ▪ Information and capital flows ▪ Technological developments.19 These global trends are driving shifts in the structure of the national and state economies. In particular, the economy is continuing to shift towards creative and population-led sectors and away from traditional industries, such as manufacturing. These growing sectors are consolidating in and around central business areas and major economic nodes and transport corridors. Traditional industries are typically those that are described as low-tech, and less-research intensive. The creative sector is generally defined as encompassing economic activities that are concerned with the exploitation of knowledge and information. Somewhat self-explanatorily, population-serving sectors are those that service the needs of people and growing populations, such as construction, retail trade, accommodation, and food. Globalisation and trade in agriculture has put downward pressure on prices and led to a trend in fewer but larger farms – areas which have reliable sources of water and ease of access to inputs to production have become more attractive, especially if the land is cheaper.

16 CSIRO, State of the Climate 2020 report (2020). Available from URL: https://www.csiro.au/en/Showcase/state-of-the-climate. 17 CSIRO, Climate change information for Australia (2019). Available from URL: https://www.csiro.au/en/Research/OandA/Areas/Oceans-and- climate/Climate-change-information. 18 Department of Environment, Land, Water and Planning (2015). Climate-ready Victoria: Hume. 19 CSIRO, Our future our world: Global megatrends that will affect the way we live (2012). Available from URL: https://publications.csiro.au/rpr/download?pid=csiro:EP126135&dsid=DS2.

Technology is also influencing the way people work, enabling greater collaboration, supporting remote working, improving efficiency and productivity, and influencing the types of work (for example, the rise of the gig economy). The Shire’s economy is changing to reflect these macroeconomic trends at the national and global scale. These changes include decreasing employment in agriculture (although increasing productivity), a declining manufacturing sector, and an increase in jobs in sectors closely tied to servicing a growing population (construction, education, health care and professional services). Climate change will also have an impact on economic growth if more environmentally sustainable, market-based approaches are not adopted.

3.5 Trends in agriculture The outlook for the meat industry is positive. Sheep meat production is expected to continue to grow globally and Australia is expected to grow its share of global export to become the leading exporter of sheep meat. The outlook for beef producers is also favourable, however dietary preferences and import access limitations are likely to limit growth. Across the industry, there is a trend towards larger farm size and concentration of agricultural output on larger livestock businesses. This trend is consistent with restructure across most agricultural industries resulting in production concentrated amongst a smaller number of producers.20 This trend has been driven by the:

▪ Better financial performance of large farms as evidenced by:

▪ Higher rates of return generated by large farm businesses (measured by output) compared to small farms business21 ▪ High farm cash income from large farms (measured by physical area) than small farms22 ▪ Economies of scale of larger enterprises and capacity to absorb declining terms of trade.

▪ Better total factor productivity (i.e. increase in the level of outputs relative to the resources used or a reduction in inputs) of larger farms compared to smaller farms. Larger scale producers have been able to benefit from the development of the export industry, including the live export trade and larger breeding stock enabling an increase in progeny23 and appear to be able to capture more of the benefits from new technologies.24 Adoption of new technology and expansion of the digital communication network have facilitated farm expansion by supporting farm businesses to:

▪ Farm large areas with low labour inputs

▪ Adopt efficient ‘precision’ agricultural practices

▪ Operate multiple properties across multiple locations. This has become an important strategy in mitigating risk to farm businesses from climate change.

20 Productivity Commission (2005) Trends in Australian Agriculture , and Australian Agricultural and Resource Economics Society (2011) Productivity and Farm Size in Australian Agriculture: Reinvestigating the returns to scale. 21 Productivity Commission (2005) Trends in Australian Agriculture 22 Ibid. 23 ABARE (2008) Productivity in the beef cattle and slaughter lamb industries. 24 Productivity Commission (2005) Trends in Australian Agriculture

3.6 Trends in tourism Tourism is a significant and growing industry in Australia. There has been strong growth in international visitation from as early as 2005, while after a decade of relatively limited growth, domestic overnight trips have been increasing since 2013.25 Communities in regional Australia are typically more dependent on tourism than capital cities which have more diversified economies International leisure visitors have a higher average value per visit, while domestic overnight leisure visitation provides most of the total expenditure in regional Australia. However, attracting international tourists out of major capital cities to regional areas has been identified as an issue of concern by Tourism Research Australia. An increasing trend in tourism towards travel experiences offers potential for rural and regional areas. This trend is driving products that are adventurous, personalised, attuned to local culture. The tourist accommodation industry has also been impacted by transformation in the short-stay market through websites such as Airbnb.

3.7 COVID-19 and potential implications This report was prepared during the COVID-19 pandemic. At the time of writing, the impacts of COVID19 were still unfolding and no detailed data on the long term impacts, or the likely form of recovery, was clearly known. However, through analysis of early economic indicators and trends some potential impacts relevant to the Mansfield Planning Strategy are apparent. Dependent on how the pandemic unfolds and the government’s response there are five possible scenarios: ▪ Shallow recession – if the virus is rapidly contained and the economy is able to quickly open back up. ▪ Large recession and rapid recovery – A quick bounce back after restrictions are lifted ▪ Large recession and normal recovery ▪ Deep recession and normal recovery ▪ Deep recession and slow recovery This potential economic impact will play out differently by sector and location. Further, some will be short sharp impacts (i.e. those associated with enforced business closures during lockdown) while others may result in prolonged structural effects on the economy (i.e. increased requirement for local manufacturing of key goods). The following outlines a few potential key sector implications of relevance to the Mansfield Planning Strategy.

25 Deloitte (2019), Understanding visitor regional dispersion in Australia.

Under a deep recession and slow Tourism was immediately affected due Households may increase working in recovery, there could be a 1 million less to lockdown. Social distancing and stay- alternative locations. This has already than projected people in Victoria in at-home orders mean many people in been identified by some remote workers 2046. sectors like hospitality and short-stay in Mansfield, who formerly owned Less population growth across Victoria accommodation have lost their main holiday homes and now live in the Shire would reduce residential development source of income. Domestic tourism may full-time. Such a trend of telecommuting which in turn could impact on the flourish immediately after restrictions lift could expand in a post-lockdown setting number of populations serving jobs. given international travel constraints. as ways of working flexibly/remotely are This would decrease the demand for Longer-term flow-on effects may include more strongly entrenched in workplaces. employment floorspace. a reduction in conservation efforts in nature- and adventure-based tourism This could result in more people living destinations due to a lack of funding and possibly working from the home from tourism investment. around Mansfield; a trend already identified prior to the COVID pandemic.

LOCAL GOVERNMENT AREA FORECASTED GDP GROWTH FOR 2019-20.

Source: SGS Economics and Planning, 2020.

Further information about the economic impacts of COVID-19 and 2019-20 bushfires here: https://www.sgsep.com.au/publications/insights/the-economic-impact-of-covid-19-and-bushfires

4. POLICY CONTEXT

Land use and development in the Shire of Mansfield is managed by several policies at the State and local government levels. This chapter provides a summary of the purpose and key parameters of these polices.

4.1 State and regional planning policy Policy at the State government level sets broad objectives for land use and development across Victoria. The key policies relevant to future planning in the Shire of Mansfield are summarised below. These State and regional policies set a framework about planning expectations from the State government, and their broad objectives are relevant to preparation of Mansfield 2040, later in this project. In Chapter 1 of this document, Figure 1 illustrates how State and local policies fit together to create a framework for decision-making about land use and development issues. Further details and additional policies are discussed, where relevant, in Chapters 0 to 11 of this document.

Plan Melbourne 2017-2050 Plan Melbourne (2017-2050) is the State Government’s guiding strategic planning document. It sets priorities for Greater Melbourne and Victoria’s productivity, housing, liveability, and sustainability outcomes from now until 2050. Although predominantly focused on Greater Melbourne, Plan Melbourne recognises that regional Victoria accounts for 25 percent of Victoria’s population. By the Census year of 2051, the plan anticipates the population of Victoria’s regions to grow from 1.5 million to 2.2 million. Outcome 7 of Plan Melbourne relates to “continuing to invest in regional Victoria” to “support housing and economic growth, enhance social and economic participation and grow strong, healthy communities”. Direction 7.1 expresses state government’s commitment to working with the nine Regional Partnerships and local governments to support the growth of housing and employment in regional cities and towns, and ensuring the right infrastructure and services are available to support the growth and competitiveness of regional and rural industries The plan supports the development of regional cities and towns, provided that growth is in keeping with local character and balanced with the protection of the productive land, economic resources and biodiversity assets that are critical to the state’s economic and environmental sustainability.

Hume Regional Growth Plan 2014 Launched in 2014 and endorsed by the twelve Hume Region Councils, the Hume Regional Growth Plan provides broad direction for regional land use and development, as well as detailed planning frameworks for key regional centres. The plan includes the following vision for the Hume Region: The Hume Region will be resilient, diverse and thriving. It will capitalise on the strengths and competitive advantages of the four sub regions, to harness growth for the benefit of the region and to develop liveable and sustainable communities. The plan identifies that Mansfield is likely to accommodate moderate growth into the future due to its proximity to Wangaratta and Benalla. Mansfield is also expected to provide for increased tourist development while continuing to support surrounding rural communities by providing access to key services. Several issues affecting the Hume region are relevant to planning in Mansfield Shire:

▪ ‘Adapt to the potential impacts of climate change.

▪ Support communities. ▪ Provide for residential, commercial and industrial expansion. ▪ Assist agricultural industries to remain competitive. ▪ Provide transport and other infrastructure to meet the needs of communities and industries. ▪ Protect and enhance environmental assets. ▪ Manage exposure to natural hazards. ▪ Diversify the economy, increase employment and fill skills gaps.’26 These broad planning issues are addressed in later sections of this report.

Planning Policy Framework The Planning Policy Framework (PPF) is a series of planning objectives and strategies that sit within every Planning Scheme across Victoria. The PPF sets State-wide and regional directions regarding the use, development, and protection of land in Victoria. It provides a framework for decision making that reflects the economic, social, and environmental needs of the community. The key objectives relevant to Mansfield Shire are:

▪ Support growth and development in existing urban settlements and foster the sustainability of small rural settlements.

▪ Identify areas of productive agricultural land, including land for primary production and intensive agriculture, and, Avoid permanent removal of productive agricultural land from the state's agricultural base without consideration of the economic importance of the land for the agricultural production and processing sectors

▪ Support clustering of intensive rural industries and agricultural production. Take advantage of locational opportunities, including separation from sensitive land uses and access to transport, power, water, and communications infrastructure.

▪ Encourage appropriate new and developing forms of industry, agriculture, tourism, and alternative energy production.

▪ Support large commercial tourism uses in urban locations or rural areas of lower agricultural value and away from areas identified as strategic agricultural land.

▪ Facilitate rural tourism activities that support agricultural enterprises such as cellar door and farm gate sales and accommodation in appropriate locations. Support the region’s network of tracks and trails and activities that complement and extend their use.

▪ Create renewable energy hubs that support co-location of industries to maximise resource use efficiency and minimise waste generation. Support opportunities to generate renewable energy from waste. Avoid locating water treatment plants close to development nodes.’

4.2 Taungurung Country Plan Taungurung Clans Aboriginal Corporation developed the Taungurung Country Plan which outlines key priorities for action under the following topics:

▪ Identity, Recognition and Right

▪ Health and Wellbeing

▪ Cultural Heritage

▪ Taungurung Traditional Knowledge

▪ Caring for Our Country

▪ Economic Independence.

26 Mansfield Planning Scheme, Clause 21.01-2 (Key issues), based on the Hume Regional Growth Plan.

The Country Plan states, ‘a key purpose of our Country Plan is to educate and guide those making decisions about Taungurung Country, Culture and People, about our vision, aspirations, and key priorities for action.’ The Country Plan also provides a foundation for developing strong partnerships and relationships with land and water management agencies and community organisations that care for Country.

To date, this project has not included engagement with the Taungurung Clans Aboriginal Corporation, however collaboration opportunities will be explored.

4.3 Mansfield policies and plans Council has undertaken a considerable body of policy work in recent years, related to many aspects of planning for development, land and community in the Shire. Once the suite of concurrent strategies have been prepared (for example, the Commercial and Industrial Land Use Strategy, and Open Space Strategy), their findings will be included in this project, and any implications for the Planning Scheme will be included as recommendations later in this project. The following provides a summary of the key local policies and their directions of relevance to Mansfield 2040.

Mansfield Planning Scheme and Municipal Strategic Statement Planning schemes are the primary tool to enable state and local government land use planning policies to be implemented, and effect positive change to the built environment. A planning scheme is prepared based on a standard, state-wide template, and local strategies guide how plans apply to respect local place-based considerations and outcomes. The Mansfield Planning Scheme is made up of state, regional and local policies, which set high-level directions, and highlight opportunities and challenges facing the Shire, that can be managed through planning controls (zones and overlays). The Municipal Strategic Statement (MSS), contained within the Mansfield Planning Scheme, outlines the strategic planning, land use and development objectives of the municipality and the strategies for achieving them. It is the basis for the use of zones and other land use controls within the planning scheme. The MSS presents the suite of objectives and strategies under the following topics: Settlement and Housing, Heritage and Character, Environmental and Natural Resource Values, Environmental Risks, Economic Development, Transport, and Infrastructure. It identifies several key issues, which are managed by policies in the Planning Scheme: Settlement and Housing

▪ Maintaining the role of Mansfield Township as the main town and in supplying the majority of housing, commercial/retail and industrial growth. ▪ Ensuring there is sufficient land supply to meet demand. ▪ Providing a diversity of housing choices including ‘lifestyle’ opportunities on rural living land and medium density housing. ▪ Balancing the need to provide for rural lifestyle opportunities and the pressure this creates for improved services and infrastructure in rural areas. ▪ Protecting productive agricultural land and addressing the pressure to use it for other purposes than farming. Heritage and Character

▪ Protecting European and Aboriginal heritage. ▪ Protecting the Alpine approaches as major transport and tourism routes. Environmental and Natural Resource Values

▪ Adapting to a changing climate. ▪ Protecting sensitive and environmentally valuable landscapes.

▪ Protecting and where possible improving water quality. ▪ Maintaining the natural resource base and amenity is critical to long term sustainability. Environmental Risks

▪ Managing flooding and bushfire risks in areas subject to development. ▪ Managing development in Special Water Supply Catchments. ▪ Managing pest plants and animals on private and public land. Economic Development

▪ Diversifying the economic base, particularly tourism to provide for year-round opportunities. ▪ Supporting the continued growth of the agricultural sector, including supporting the diversification of the agricultural base. ▪ Supporting ‘clean and green’ industries as alternatives to the traditional forms of industry. ▪ Maximising eco-tourism opportunities. Transport and infrastructure

▪ Identifying a heavy vehicle bypass for Mansfield Township. ▪ Planning and providing for full reticulated infrastructure to all urban areas. ▪ Addressing the lack of reticulated sewerage, and other infrastructure, in small towns.’27 The current MSS for Mansfield Shire reflects the objectives of the Hume Regional Growth Plan 2014 and the Council Plan 2013-2017. It may be updated via a formal planning scheme amendment process to reflect the strategic policy direction of Mansfield 2040 once complete.

Planning zones A range of planning zones apply across the Shire, identifying where land can be used (primarily) for residential, commercial, industrial, and farming purposes, or where there is public land (for example, in a state or national park). A summary of the zones and their application across Mansfield Shire is contained in Appendix A. The residential, commercial, industrial and farming zones are also assessed in Chapter 5 (Settlement and Housing) and Chapter 8 (Economic Development) of this document, where housing, commercial and industrial land capacity, and other land management considerations have been reviewed. The main zones that apply to Mansfield’s urban areas are:

▪ Farming Zone (FZ): This applies to large areas in the Shire. The FZ provides for the use of land for agriculture and encourages the retention of land for productive agricultural purposes. This zone is intended to ensure that that non-agricultural uses, including dwellings, do not adversely affect the use of land for agriculture. The Schedule to the zone sets the minimum subdivision area for lots at 40 hectares.

▪ Low Density Residential Zone (LDRZ): This zone applies to parts of Mansfield Township, in the new residential areas in the south, west, and north. The LDRZ also applies to some parts of Goughs Bay, and Jamieson. The purpose of this zone is to provide for low-density residential development. A condition of the zone is that wastewater is to be treated onsite (that is, reticulated sewerage cannot be provided).

▪ Mixed Use Zone (MUZ): The MUZ provides for a range of commercial, industrial and higher density housing. It is applied to selected sites in Mansfield Township, either side of Mount Buller Road where some urban services land uses are clustered (All Seasons Mansfield, a Veterinary Clinic, Mansfield Hire and Repco Car Service). It also applies to land on Chenery Street currently used for car dealerships, and to land off Walker Street.

▪ Township Zone (TZ): This zone is used to identify small settlements where a mixture of small commercial activities, and residential uses are appropriate within a rural setting. In the Shire, this applies to Merton, Maindample and Merrijig. The intention of the zone is also to enable some community uses to serve local community needs, in appropriate locations.

27 Mansfield Planning Scheme, Clause 21.02-2: Key issues. Available from URL: https://planning- schemes.delwp.vic.gov.au/__data/assets/pdf_file/0006/463965/Mansfield_PS_Ordinance.pdf.

▪ General Residential Zone (GRZ): The GRZ applies to the suburban parts of Mansfield Township, as well as in the Shire’s other main towns: Jamieson, Bonnie Doon and Goughs Bay. Small areas of the zone also apply to some small settlements across the LGA: Macs Cove and Howqua, Merrijig, and Sawmill Settlement. The purpose of the GRZ is to encourage development that is sensitive to neighbourhood character (the look and feel of a place), and to encourage diverse housing types that suit the needs of the community, where there is good access to transport and community services.

▪ Industrial 1 Zone (IN1Z): This zone applies to parts of Mansfield Township, with parcels to the north, east and south. The IN1Z allows for a select range of industrial, storage and distribution uses. Key precincts include the Dead Horse Lane/Lakins Road Precinct, and the Mount Buller Road Precinct which includes light industrial uses along Crosbys Lane.

▪ Commercial 1 Zone (C1Z): Commercial Zone 1 is applied along Maroondah Highway in Mansfield Township. The precinct extends from the golf course in the east to Fords Creek in the west. C1Z is also in place within the towns of Bonnie Doon, Goughs Bay, Macs Cove and Jamieson. The purpose of C1Z is to create lively centres with a mix of retail, office, business, entertainment and community uses. The mix can feature some residential dwellings at specified densities.

▪ Commercial 2 Zone (C2Z): This zone is in place within Mansfield Township and is currently applied along Mount Buller Road which lies between Greenvale Lane and Reardon Lane. C2Z is focused providing space for commercial uses such as offices, appropriate manufacturing, light industry, bulky goods retailers as well as other complementary business and retail services

▪ The Rural Living Zone (RLZ) and Farming Zone (FZ) apply to the Shire’s rural areas. The purpose of the RLZ is to provide for some residential use in a rural environment, where people may also conduct some small scale hobby farming activities. It has typically been applied around the fringe of Mansfield Township, however there are also some areas of RLZ across the Shire where smaller settlements are found, for example, at Tolmie. This zone enables rural lifestyle opportunities on smaller blocks than in the FZ, and is usually applied in places where mains or reticulated water and wastewater systems are unavailable. The RLZ is used as a buffer between farming and urban places, as a way to limit interface issues between agricultural activities in the FZ, and other more sensitive township or urban areas.

FIGURE 15: PLANNING ZONES IN MANSFIELD SHIRE

Source: Mansfield Planning Scheme, 2020.

Planning overlays A range of planning overlays apply across the Shire, these show the location and extent of special features, as well as areas where special controls are in place. Overlays are grouped into Environmental and Landscape Overlays, Heritage and Built Form Overlays, Land Management Overlays and Other Overlays – currently Mansfield has 12 in place plus selected schedules. Unlike zones which can only be applied to one piece of land at a time, multiple overlays can cover the same piece of land, this is illustrated in Figure 16 below. Each overlay has a unique purpose and requirements or guidelines to be met. A summary of the overlays and their application across Mansfield Shire is contained in Appendix A.

Updating the Planning Scheme Recently, the standard format of planning schemes has been updated to simplify the structure, since the last time the Mansfield scheme was reviewed. Mansfield 2040 may form the basis of the new MPS, or Municipal Planning Strategy, referenced by the scheme. Local policies will form part of the broader Planning Policy Framework (PPF) alongside State and regional directions, to avoid duplication.28 Further information about the Mansfield Planning Scheme is included in Appendix A to this report.

28 Further information about updates to the planning scheme structure are available on the Department of Environment, Land, Water and Planning (DELWP) website: https://www.planning.vic.gov.au/__data/assets/pdf_file/0022/463072/A-Practitioners-Guide-to-Victorian-Planning-Schemes- 1.4.pdf.

FIGURE 16: SELECTED PLANNING OVERLAYS IN MANSFIELD SHIRE

Source: Mansfield Planning Scheme, 2020.

FIGURE 17: PLANNING OVERLAYS – BUSHFIRE MANAGEMENT OVERLAY

Source: Mansfield Planning Scheme, 2020.

Council Plan 2017-2021 The Council Plan is the describe the outcomes that Council intends to achieve during its four year term, The Council Plan is implemented through the Annual Plan and Budget, which reflects the Council’s decisions on the specific initiatives to be funded each year. The current Council Plan includes a vision for the Shire, that: ‘all of our townships have a strong sense of community and come together not only to celebrate the place in which they live but help each other out in times of need and when natural disasters strike.’

Key initiatives presented in the Council Plan of relevance to the preparation of Mansfield 2040 include:

▪ ‘Develop a Community Vision in partnership with the community to help articulate long term goals for our Shire.

▪ Articulate Council and community views on major Federal and State government initiatives including:

▪ telecommunications Black Spot funding ▪ sustainable funding for small regional councils ▪ legislative reviews ▪ protection and enhancement of the environment, in partnership with local environmental groups.

▪ Engage with regional partners, including the Hume Regional Road Group, to deliver regional infrastructure planning and works that will benefit our municipality.

▪ Ensure the needs of senior citizens and people of all abilities are catered for during the development of the Mansfield Streetscape Rejuvenation Project and the preparation of the Housing Strategy.

▪ Develop and implement a local policy on housing provision covering issues such as type, mix, subdivision design and best practice environmental outcomes.’

Mansfield Municipal Health and Wellbeing Plan 2017 The Municipal Health and Wellbeing Plan (2017) presents a strategic approach to improving the health of all residents of Mansfield, recognising the variety of factors that influence the health and wellbeing of members of the community (including individual, and social and physical environmental factors) Key outcomes sought by the plan are:

▪ Increased physical activity ▪ Reduced isolation for adults and young people ▪ Increased access to internet for households and community groups ▪ Strengthened sense of place and belonging ▪ Creation of safe environments ▪ Improved affordability of housing ▪ Increased access to key health and social services ▪ Increased adaptation to the impacts of climate change.

Mansfield Environment Strategy 2019-2023 The recently prepared, Mansfield Environment Strategy, sets out the immediate actions required to combat climate change and to protect, promote and rejuvenate the Shire’s natural environment. The plan outlines a range of actions under four key focus areas: waster, water, land, and sustainable development. Outcomes relevant to Mansfield 2040 are:

▪ Implement native vegetation protections in the Planning Scheme. ▪ Establish native vegetation offset sites. ▪ Advocate for the provision of a reticulated sewage schemes in unsewered townships that utilises connection to existing septic systems. ▪ Review planning schemes and decisions to protect water resources and assets.

▪ Encourage urban tree cover by supporting the planting of suitable trees within the urban landscape. ▪ Advocate for investment in public infrastructure that facilitates a future low carbon economy. ▪ Work in partnership and support Taungurung Lands and Water Council with the management of public lands.

Draft Mansfield Economic Development Strategy 2020 Council is currently preparing an Economic Development Strategy to guide the growth and resilience of the local economy over the five-year period between 2020-25 The plan is intended to support the diversification of the local economy, to support growth of local businesses and attract ongoing investment. Draft actions relate to improving township presentation and infrastructure, promoting environmentally sustainable business practices, protecting natural assets critical to tourism investment, and improving transport and digital connectivity.

Draft Mansfield Commercial and Industrial Land Use Strategy 2020 The Commercial and Industrial Land Use Strategy is currently being prepared by Council. The strategy seeks to support the long-term growth and resilience of Mansfield’s economy by establishing a commercial and industrial land use framework that will enable existing businesses to expand, attract new businesses, strengthen supply chains, and diversify business activity. Key outcomes of the project include the identification of land to support commercial and industrial expansion, and review the structure and zoning of existing commercial and industrial precincts.

Mansfield Housing Strategy 2018 The Mansfield Housing Strategy was prepared in 2018, considering housing demand and supply for the Mansfield township. The Strategy set out a recommended township boundary for Mansfield, highlighting that this mechanism could be used to protect environmental and landscape features, and valued agricultural areas, from encroaching development. The Housing Strategy identified the following directions for Mansfield:

▪ Plan for residential growth and diversity by providing clear strategic direction for a diverse range of lot and dwelling sizes to suit current and future housing needs ▪ Address social and affordable housing needs ▪ Respect heritage, character and quality design outcomes ▪ Respond to climate change and environmental considerations.29 The Strategy housing supply and demand assessment found that within the Mansfield township boundary, there was approximately 38 years’ supply in planned and committed greenfield (new release) residential areas, with further space for an additional 55 years’ supply in unplanned greenfield areas. The study also found that there was sufficient opportunity for 8 years’ supply based on infill (redevelopment) opportunities in and around the town.30 Importantly, the study found that although there are significant residential growth opportunities, there would be a need for upgrades to and additional road, transport, service and drainage infrastructure to support this residential growth, but also additional economic growth.31 The strategy highlighted that an infrastructure staging or framework plan would be required to identify relevant road, transport, service and drainage infrastructure required to support future residential growth. Such a plan would be based on the projected needs of the community at various points in time, guide future investment into important local infrastructure, and assist Council in collecting funds and managing physical change to the Mansfield township over time. The Mansfield Housing Strategy (2018) applies to the Mansfield township. Given the Mansfield 2040 project considers housing for the whole Shire, additional work has been done (see Chapter 6) around the implications of supply and demand for different housing types across the municipality.

29 Tract Consultants for Mansfield Shire Council, Mansfield Housing Strategy, 2018, p. 14. 30 Ibid., p. 33. 31 Ibid., p. 34.

Other strategies and background studies Other strategies and background studies that have informed the preparation of this background and discussion paper are:

▪ Waste Management Strategy 2020-2025 ▪ Draft Integrated Water Management Plan 2019 ▪ Mansfield Housing Background Summary Report 2018 ▪ Town Approaches Background Paper 2018 ▪ Footpath, Cycle, Bridleway Strategy 2017 ▪ Mansfield Road Strategy 2017 ▪ Domestic Wastewater Plan 2014 ▪ Mansfield Shire Sport and Recreation Strategy 2014-2019 ▪ Mansfield Heavy Vehicle, Alternative Routes Planning Study 2010 ▪ Mansfield Neighbourhood Character Study December, Planisphere, December 2002 ▪ Non-resident ratepayer survey 2007 ▪ Mansfield Shire Community Plans.

SUMMARY OF POLICY IMPLICATIONS FOR THE PLANNING STRATEGY State and local plans summarised in this section establish a policy framework under which Mansfield 2040 will sit. Some of the key issues identified in this section are examined in more detail in this document, such as the need to ensure there is sufficient housing supply (quantity, and type of housing) for residents across the Shire, the need to adapt to the effects of climate change, or to diversify the local economic base. The Planning Strategy may support and strengthen other ongoing work Council is currently completing, such as the Commercial and Industrial Lands Strategy, or forthcoming Open Space Strategy.

▪ The Hume Regional Growth Plan identifies the Mansfield Township as a place where moderate population growth is expected to occur. In the Plan, Wangaratta is identified as a regional city, and most growth in the region will be directed into Wangaratta and Benalla as larger service centres for Hume. The Plan identifies regional issues, many of which affect the Shire: climate change, the need for residential, commercial and industrial land, protection of agricultural industries, transport and community connectivity, environmental protection, natural hazard management, and economic diversification.

▪ Following Plan Melbourne, the planning policy framework (PPF) section of the Mansfield Planning Scheme contains broad strategies to manage rural lands and townships, such as directing growth into existing urban areas, while fostering the sustainability of smaller rural settlements The PPF also includes clear policy regarding the identification and retention of productive agricultural land. It also highlights that new forms of industry, agriculture, tourism and alternative energy production may be encouraged. For new tourism and industrial uses, the policy is to locate these away from productive agricultural areas (that is, into existing urban places, or where land capability for agriculture is low). The policy supports tourism activities that add value to agriculture, such as cellar door and farm-gate sales.

Local policy The Mansfield Planning Scheme identifies several issues for the Shire:

▪ Maintaining the role of Mansfield Township as the main town, supplying most of housing, commercial/retail and industrial growth, and ensuring there is enough land supply to meet demand. ▪ Providing a diversity of housing choices including 'lifestyle' opportunities on rural living land and medium density housing, while balancing the pressure this creates for improved services and infrastructure in rural areas. ▪ Protecting productive agricultural land and addressing the pressure to use it for other purposes than farming. ▪ Protecting European and Aboriginal heritage. ▪ Protecting the Alpine approaches as major transport and tourism routes. ▪ Adapting to a changing climate and protecting sensitive and environmentally valuable landscapes. ▪ Protecting and where possible improving water quality. ▪ Maintaining the natural resource base and amenity is critical to long term sustainability. ▪ Managing flooding and bushfire risks to development, pest plants and animals on private and public land. ▪ Diversifying the economic base, particularly tourism to provide for year-round opportunities. ▪ Supporting traditional and emerging forms of agriculture, and 'clean and green' industries as alternatives to the traditional forms of industry. ▪ Maximising eco-tourism opportunities.

▪ Planning for reticulated infrastructure in urban areas, and assessing this in smaller towns. 37

5. SETTLEMENT AND HOUSING

Mansfield is an attractive location to live. The Shire provides diverse housing choices from expansive farming runs, lakeside and alpine townships, rural settlements, and suburban style living. This section overviews the Shire’s existing settlement network, identifies future demand and for housing, including affordable and social housing, and assessed the capacity of the existing land zoned for residential uses to accommodate growth.

5.1 The Shire’s towns and settlements The Shire of Mansfield’s town and settlement network offers a diverse range of housing and lifestyle opportunities for residents, from expansive farming runs, rural living lots, lakeside and alpine townships, small historic settlements, to suburban style living. Mansfield Township is the major service centre within the municipality, accommodating the greatest number of dwellings of the Shire’s townships and settlements. Bonnie Doon, Jamieson, Maindample, Gough’s Bay, Merrijig, Merton, Howqua Macs Cove and Sawmill Settlement each support smaller township populations, while Ancona, Barjarg, Tolmie, Upper Delatite and Woods Point are largely small, rural residential settlements comprised of a few residential properties. Mansfield Township, Bonnie Doon and Merrijig are the only towns with reticulated sewerage.

Direction 6.2 of the state government’s long term plan for managing growth and change across Victoria, Plan Melbourne 2017-2050, seeks to rebalance Victoria’s population growth from Melbourne to rural and regional Victoria over the life of the strategy. Together with Plan Melbourne, the Hume Regional Growth Plan 2014, presents the state government’s vision for the sustainable growth and development of the broader Hume Region, to 2040. The Hume Regional Growth Plan identifies that the region will experience an ongoing increase in population to 2040, with capacity to accommodate a greater share of the State’s overall growth.

In response, the plan promotes population growth in the existing network of settlements to ensure that infrastructure and services are used efficiently and to maximise benefits for the community, and states that: The existing network of settlements in the region will be strengthened by focusing growth and change primarily in Shepparton, Wodonga, and Wangaratta, encouraging growth in Benalla, bolstering economic development in Seymour, and supporting growth in other settlements. Moderate growth is also expected in towns that have good access to Wangaratta or Benalla, including those in popular tourist areas, including Mansfield, Myrtleford and Bright.

FIGURE 18: HUME REGIONAL GROWTH PLAN SETTLEMENT FRAMEWORK

Source: Victorian Government (2014), Hume Regional Growth Plan

HUME REGIONAL GROWTH PLAN: KEY DIRECTIONS Provide a consistent approach to strategically plan for rural residential uses

▪ Some municipalities have set aside significant areas of land for rural residential settlement and others have provided very little.

▪ A consistent approach to planning for rural residential uses is needed to ensure the location of these uses considers regional assets, such as agricultural land and natural resources, sustainable settlement patterns (including the cost of providing and maintaining services and infrastructure) and natural hazards, such as bushfire and flood.

▪ Sufficient areas of appropriately zoned land should be provided in strategic locations to help reduce development pressure on agricultural areas and accommodate a range of lot sizes. Provide a mix of housing types in appropriate locations

▪ New housing developments, particularly in the identified key settlements, must include a variety of diverse and affordable housing options for all income levels. These include different dwelling types, sizes, designs, and densities to offer greater housing and lifestyle choices to meet the needs of a changing demographic profile.

▪ The provision of sustainable, innovative, and flexible housing options will be supported, and will also allow for ‘ageing in place’. This will necessitate a number of agencies working together to maximise opportunities to increase the supply of appropriate and affordable housing.

▪ The region will need a mix of housing types that are located close to commercial centres, employment and community, education, recreation, and entertainment facilities.

▪ In some areas, opportunities should be considered to establish a more compact urban form with a complementary mix of land uses to allow people to work, live and play in the same area, minimising environmental impacts, increasing use of infrastructure and public transport and reducing dependence on private vehicles.

5.2 Housing Areas for housing across Mansfield Shire are identified using several ‘zones’ in the Mansfield Planning Scheme. This section outlines the extent of those zone policies across the Shire, what type of housing is appropriate in those places, and whether the supply of residentially-zoned land appropriately matches the type of housing and that is in demand, or locations where people want to live, across the Shire.

Residential zones Residential zones identify land where the primary use of land is intended for residential purposes. There are several residential zones that apply in Mansfield Shire. A brief overview of each zone and their purpose is provided in Table 5, and the extent of residential zones across the LGA is shown in Figure 19.

TABLE 5: RESIDENTIAL ZONES THAT APPLY IN MANSFIELD SHIRE

Zone General purpose of Zone

General Residential The primary zone to be applied in new or established urban areas intended for housing, Zone (GRZ) where there are minimal constraints to residential development. It provides for moderate growth and diversity of housing. This zone is applied in the Mansfield town centre, and to small settlements across the LGA. Low Density Intended for residential areas not serviced by reticulated sewerage systems. The LDRZ Residential Zone controls minimum lot size depending on whether onsite wastewater management is (LDRZ) required. This zone applies to some newer housing areas around Mansfield town centre.

Mixed Use Zone Provides for residential uses and a range of complementary commercial, industrial and (MUZ) other uses suitable for areas with a mixed use character. There are some small areas of MUZ in Mansfield, on Mount Buller Road on the eastern edge, behind the visitor information centre, and on Chenery Street.

Township Zone (TZ) Intended to provide for residential development and a range of commercial, industrial and other uses in a small rural town context. The TZ applies to Maindample, Merrijig and Merton. Special Use Zone In Mansfield, this zone has applied to the Mountain Bay development area. The Special (SUZ) Use Zone (Schedule 1 – Mountain Bay) applies to an area on the foreshore of Lake Eildon, proximate Gough’s Bay. The zone makes “provision for a range of tourist and residential accommodation, recreation and water-based facilities and commercial activities”. No permit is required for the construction of a dwelling in accordance with the associated Development Plan.

Rural Living Zone While captured under the suite of ‘rural zones’ in the planning scheme (rather than residential), the Rural Living Zone (RLZ) provides for predominantly residential uses in a rural setting where appropriate land management is exercised. In Mansfield Shire, no permit is required to construct a dwelling on lots between 2 and 8 hectares (the range of lot sizes in the RLZ is shown in Figure 20). Across Mansfield, minimum lot size is determined by the specifications of the relevant schedule to the zone, which apply in different locations based on environmental and topographic context (Figure 19). New development on RLZ lots must demonstrate it responds to a range of issues relating to agriculture, waste water management, design and siting, the environment. Typically, RLZ lots require onsite wastewater management, and have a lower requirement for reticulated services than residential development in an urban setting. The zone is usually applied as a buffer or transition between urban residential settings, and farming areas.

FIGURE 19: LAND ZONED FOR RESIDENTIAL USE

Source: SGS Economics and Planning (2020)

FIGURE 20: LOT SIZES IN THE RURAL LIVING ZONE

Source: SGS Economics and Planning (2020)

Location of recent development The Shire of Mansfield is growing. Between 2006 and 2016 the population of the Shire increased by 1,317 people or 18 percent. While low in total number, this growth represents an average annual growth rate that is higher than the average of regional Victoria; 1.8 percent compared with 1.2 percent, respectively. In total, the construction of 1,750 dwellings received planning approval across the Shire between 2009 and 2020.

Many of these permit approvals were for dwellings located in the Rural Living Zone (35 percent), followed by the Farming Zone (32 percent) and areas zoned General Residential Zone (21 percent).

Figure 21 shows the distribution of recent dwellings approvals across the Shire. It is noted that not all dwelling approvals progress to completion and there may be a lag time between approvals and completions. Therefore, the data presented may not reflect the number of houses built in the period but instead provides an indication of areas that may be more active for dwelling development than others.

FIGURE 21: PLANNING APPROVALS FOR NEW DWELLING CONSTRUCTION, 2009 TO 2020

Source: Mansfield Shire Council (2020), Planning Permit approvals data)

Current planning controls in the Mansfield Planning Scheme allow a dwelling to be constructed on a lot that is greater than 40 hectares as-of-right in the Farming Zone, that is, without needing a planning permit (this may vary depending on potential overlay triggers). If a lot is less than 40 hectares then planning approval is required to develop, with the applicant required to meet the zone control requirements. The large number of new dwelling construction in the Farming Zone suggests that there is rural residential development occurring in the Farming Zone in Mansfield Shire, and which is not directly related to the agricultural use of the land. This is a consistent issue across regional Victoria. This type of residential development in the Farming Zone has implications for settlement and housing in Mansfield related to:

▪ Leakage of residential development from designated rural living areas: this reduces the viability of development in these areas and may stretch Council’s infrastructure and servicing resources, notwithstanding that this housing is typically ‘off-grid’ in terms of water and sewer (and energy).

▪ Land use and associated amenity conflicts for lifestyle dwellings in the farming zone (chemical sprays, noise etc) which can impact new migrants expectations for a benign natural landscape and undermine the operations and viability of agricultural activities. Discussion of the impacts of rural living development in the Farming Zone on the natural landscape and the local economy (particularly the agricultural sector) are contained within Sections 6 and 8 respectively.

Demand for housing in the future In 2036, the population of the Shire is projected to reach 11,000, an increase of 2,300 people from 2016. While the population of the Shire is expected to continue to grow towards 2036, the pace of growth will slow to be more in line with that of other regional areas Since 2006, the greatest share of total population growth can be attributed to people aged between 55 and 64, and 65 and 74. These age groups contributed 23 percent and 45 percent to the total increase in the number of residents respectively. Together, these age groups represent over 31 percent of the total population in 2016, increasing from 24 percent in 2006. This trend is in line with broader population trends but is also amplified by the attractiveness of the Shire for retirees seeking a ‘tree change’ lifestyle. In contrast, there was very little growth (and even some negative growth) for young adults and working aged people (15 to 34) between 2006 and 2016. To 2036, people aged between 55 and over are expected to continue to account for the largest share of growth in the population. However, younger and middle age groups are projected to experience an increase in their share of growth over this time, contributing somewhat to a rebalancing of the age profile of the municipality.

TABLE 6: HISTORIC AND FORECAST CHANGE IN POPULATION 2006 TO 2016 AND 2016 AND 2036

0-4 5-14 15-24 25-34 35-44 45-54 55-64 65-74 75+ Total

Change between 2006 112 118 30 31 7 -25 301 593 150 1,317 and 2016 (total) Share of total change 9% 9% 2% 2% 1% -2% 23% 45% 11% 100% between 2006 and 2016 Change between 2016 123 299 219 191 254 304 373 338 192 2,292 and 2036 (total) Share of total change 5% 13% 10% 8% 11% 13% 16% 15% 8% 100% between 2016 and 2036 (%) Source: Victoria In Future (2020); SGS Economics and Planning (2020)

Figure 22 shows forecasted population by family type. The largest total growth in population by family type is forecast for couple families with children, an increase of 840 households in Mansfield between 2016 and 2036. Couple families with no children are projected to experience the second largest total growth (740 households). Lone person households are expected to see the highest growth rate at an average of 1.45 percent per annum. The proportion of each household type is expected to remain largely constant into the future, barring a minor increase in the share of lone person households and concurrent decrease in the share of couple families with and without children.

FIGURE 22: POPULATION BY FAMILY TYPE, 2016 TO 2036

Source: Victoria In Future (2020); SGS Economics and Planning (2020)

The population growth in Mansfield, combined with broader population trends will result in a demand for 1,094 additional private houses in Mansfield by 2036.

This includes demand for approximately 970 additional separate houses and 150 detached dwellings. Dwelling forecasts are showing a decline in demand for apartments and ‘other’ dwellings types (caravans, cabins etc.) which make up a very small share of total dwellings in any case. It is important to note that these dwelling forecasts are based on existing housing stock and historic development trends and should be interpreted with caution. Looking at where people live now in Mansfield LGA provides an imperfect picture of future housing demand. This is because much of the current housing stock was built decades ago, people stay in the same house for a long time, relatively few houses are available at any one time which means movers compromise on their ideal option, and modest local choice means that the type of house they want may not exist in the location they desire. If a greater diversity of housing were available, people may make different housing choices. A possible future undersupply could be detached and more compact housing forms for smaller households and ageing ‘downsizers’. Many regional towns and settlement areas are experiencing a shortage of housing options for older households as they move through their post-retirement years.

TABLE 7: DWELLING DEMAND, 2016 TO 2036 2016 - 2036 2016 2036 Change Separate house 3,880 4,857 976 Semi-detached house 63 217 154 Flat, unit or apartment 19 0 -19 Other dwelling 74 57 -17 Total Private Dwellings 4,036 5,130 1,094 Source: Victoria In Future (2020); SGS Economics and Planning (2020)

5.3 Capacity for future housing growth

Housing capacity analysis Having established total future demand for housing, a housing capacity analysis has been undertaken to determine the extent to which future demand can be accommodated within existing, residentially zoned land across the Shire.

This analysis takes into consideration a range of factors that affect the capacity of land to accommodate housing, including: existing vacant lots, potential for further subdivision or infill development, average lot sizes, the impacts of flooding and bushfire, topography, heritage, buffers to sensitive uses (such as the Wastewater Treatment Plant), public land status and the locations of services and infrastructure.

Across the Shire, there is existing capacity to accommodate approximately 8,000 dwellings within existing, residentially zoned land against a forecast need for 1,094 dwellings to 2036. Assuming forecast population growth remains stable into the future, the available capacity represents over 120 years’ worth of supply. This represents far more than the 15 years of supply required by state planning policy.

FIGURE 23: ESTIMATE OF HOUSING CAPACITY, 2020

Source: SGS Economics and Planning (2020).

Table 8 shows the total capacity for housing within each zone.

TABLE 8: HOUSING CAPACITY BY ZONE (REPORTED AS TOTAL NUMBER OF LOTS)

GRZ1 LDRZ MUZ RLZ1 RLZ2 TZ Total

Total capacity 4,951 1,083 114 920 193 699 7,960

% of total capacity 62% 14% 1% 12% 2% 9% 100% Source: SGS Economics and Planning (2020)

Projecting recent housing development trends (as discussed in relation to Figure 21 above) into the future and applying the total housing demand of 1,094 dwellings by 2036, would indicate future demand of around:

▪ 380 dwellings in the Rural Living Zones, and

▪ 230 dwellings in the General Residential Zone by 2036. It is evident that there is currently a considerable excess of residentially zoned land across the residential zones.

Urban residential land supply Looking at capacity by location, most of the available capacity is located within Mansfield township (approximately 6,000 dwellings), however there is capacity for additional residential development across many of the Shire’s townships and settlements. The majority of Mansfield’s population growth is likely to occur on greenfield land.32 Some of these areas are currently being developed, some have approved plans in place, some are already zoned for residential development but not yet developed, while others will be the subject of further investigation looking to a possible rezoning. New development (greenfield) areas in Mansfield are: General Residential Zone ▪ Somerset Rise (south of Red Gum Drive)

▪ Loyola Run Estate (south - east along Mansfield – Whitfield Road)

▪ Highton Lane Development Plan area (east of Highton Lane). Low Density Residential Zone ▪ Stockmans Rise Estate (east of Withers Lane)

▪ Kareen Hills and The Grange Estates (north east along Mansfield – Whitfield Road).

▪ Beolite Retirement Village (west of Kidston Parade) – retirement and aged care. It is noted that the Highton Lane Development Plan area has previously been identified as being constrained by fragmented land ownership, access issues and flooding. This area provides for a theoretical yield of some 300 - 400 conventional and medium density dwellings. In addition to the above greenfield development sites, there are also several greenfield areas that are zoned for residential use but with no current precinct plans or approvals:

▪ South of Dead Horse Lane: Includes properties to the south of Dead Horse Lane and between Midland Highway and Stock Lane. This area is zoned General Residential Zone.

▪ South of Malcolm Street: Includes properties to the south of Malcolm Street and between Highett Street and Stoneleigh Road. This area is partially zoned General Residential Zone and partially zoned Rural Living Zone.

32 Greenfield land is land that has not previously been developed. For example, agricultural land on the edge of town.

▪ East of Monkey Gully Road: Includes land to the east of Monkey Gully Road, west of Highton Lane and south of View Street. This area is zoned General Residential Zone. These areas are not covered by a Development Plan (unlike the approved and developing areas described above), which typically provide detail around road and transport networks, the location and dimensions of open space, community infrastructures, the retention / protection of key environmental and heritage features and the provision of service and drainage infrastructure. Crucially though there is no associated plan for off-site or shared infrastructure which has cost implications for Council.

Rural residential land supply Rural lifestyle opportunities are a significant drawcard of Mansfield Shire. Whether it be lifestyle, part time or hobby farming, the natural and agricultural landscape of Mansfield Shire drives interest in rural living. While recognising the popularity of rural residential lots for lifestyle purposes, state planning policy seeks to avoid the removal of productive agricultural land from the agricultural base due to permanent changes in land use and without proper consideration of economic impacts, environmental and land capability implications. In addition, state policy seeks to limit new housing development in rural areas by:

▪ Directing housing growth into existing settlements.

▪ Discouraging development of isolated small lots in the rural zones from use for dwellings or other incompatible uses.

▪ Encouraging consolidation of existing isolated small lots in rural zones. As highlighted above, dwellings are permitted with consent in the rural zones.

Housing in the rural area In the rural zones, the main objective is that land be used for primary production or small-scale non-agricultural uses that are in harmony with agriculture. Providing housing on the land is an ancillary use, intended to enable and support running a farm. Despite this, and as highlighted above, many properties in the rural area are used for rural residential, rural living or hobby farms. In these instances, the character may be generally in keeping with a rural aesthetic; however very little or no income-generating activities related to the land may be occurring there. Given this, characterisation of rural residential development can be understood as set out here (and as observed across Mansfield’s rural area):

▪ Purely rural residential living with almost no agricultural use. This can be further segmented:

▪ Rural residential living on small lots in estate-type development with some urban style services but often not reticulated sewer or water (Gough’s Bay, for example); and ▪ Rural retreats on often larger “bush blocks” and sometimes more remote locations (such as Tolmie)

▪ Rural living with very small scale hobby interests of an agricultural nature e.g. keeping horses for private recreation. Often in estate style developments but with larger lot sizes and some agricultural land.

▪ Hobby farms, which are smaller farms running hobby-scale agricultural operations. Some may have small- scale income-generating activities such as fruit and vegetables, horticulture, or animal keeping. Council currently uses three different rural zones for these kinds of land use/development:

▪ Rural Living Zone: this is generally applied in areas of the Shire that have prominent landscape or environmental values, and there is limited agriculture. The emphasis is as the zone name suggests rural residential living in a natural environment backdrop.

▪ Farming Zone: this zone covers areas of productive agricultural land with the intent to limit non- agricultural uses, including dwellings.

▪ Special Use Zone 1 (Mountain Bay Housing Estate): This zone covers land at the foreshore of Lake Eildon, proximate Gough’s Bay designated for rural residential living.

Based on recent dwelling approvals in the Farming Zone, it is clear that farming land is being used for rural living and rural lifestyle purposes. The housing capacity analysis conducted for this project suggests that there is capacity in existing Rural Living-zoned land for additional dwellings to be clustered in a more appropriate location. However, many are attracted to locate in the Farming Zone due to its attractive landscape setting, and pricing per hectare can be more affordable in a more remote area. This challenge has broader influences that are outside the ambit of planning controls; however, it is a trend affecting picturesque and well-located farming areas across Australia.

5.4 Housing affordability The purchase price for homes in Mansfield LGA increased between 2006 and 2016 at a rate of 4 percent per year. In comparison, the median household income has remained relatively stable (growing at a rate of 1.3 percent per year between 2006 and 2016). This represents a rate of house price growth similar to other regional areas, but a higher rate of income growth.

FIGURE 24: HOUSE PRICE GROWTH COMPARISON, 2006 TO 2016

Source: Victoria Government (2019), A Guide to Property Values.

Median weekly rent and mortgage repayments have been increasing rapidly in the Shire. Median weekly rents increased by 28 percent between 2011 and 2016, from $180 per week to $231 per week. This represents a growth rate of 5.1 percent per annum. Median weekly rent across regional Victoria increased at a rate of 4 percent per annum of the same period. While slower than median rents, median weekly mortgage repayments have also grown substantially in recent years in the Shire, and at a far greater pace than across the rest of regional Victoria. Between 2011 and 2016, median mortgage repayments increased by 13 percent, while remaining the same in regional Victoria over the same period.

Despite strong house price growth and stagnating household incomes, the share of households who own their houses outright or with a mortgage, or who are renting, has remained stable over time. The growth in rents is increasingly placing pressure on rental households, particularly those reliant on welfare income, such as Newstart or the retirement pension. In Mansfield, fewer and fewer properties are available for these groups (this is discussed further in the following section).

Measuring need for social and affordble housing Rapidly rising rents is contributing to a growing number of renter households and families in the Shire experiencing rental stress. High house prices and rising monthly mortgage repayments are likely contributing to an increasing number of households experiencing mortgage stress. However, addressing mortgage stress requires policy solutions that are typically outside of the control of local government. As a result, this section of the report is primarily focused on rental stress in Mansfield LGA, and as such is an underestimate of the total extent of total housing (rental and mortgage) in the Shire.

WHAT IS RENTAL STRESS?

Rental stress is the situation where a moderate (or lower) income household’s rental payments are so high that they must sacrifice on life’s necessities such as such as food, health care, or education. Moderate housing stress is when a household must spend more than 30 percent of their income on rent. Severe housing stress is when a household must spend more than 50 percent of their income on rent. Affordable housing is appropriate for very low, low and moderate-income households in rental stress. It is not appropriate for high-income households because high housing costs are unlikely to impact their ability to pay for necessities. > 30% > 50% Moderate Stress Severe Stress

Housing Costs Disposable Housing Disposable Income Costs Income

Table 9 shows the total demand for social and affordable housing in 2016. There was an estimated 19 people experiencing homelessness in Mansfield LGA. This includes people living in improvised dwellings, tents or sleeping out, as well as those in supported accommodation; temporarily staying with other households; living in boarding houses; persons in temporary lodgings; and persons living in severely crowded dwellings

In total, there are 355 people in the Shire who are experiencing housing stress, including social and affordable housing. This represents more than 9 percent of all households and 60 percent of all renter households.

TABLE 9: TOTAL DEMAND FOR SOCIAL AND AFFORDABLE HOUSING, 2016

Homeless Living in Social Severe rental Moderate Total demand for social Housing stress rental stress and affordable housing

Total 19 62 96 158 335 Source: SGS Economics and Planning (2020)

Figure 25 shows the number of households experiencing severe and moderate housing stress in Mansfield Shire broken down by household type and income. It shows that 21 percent of all one-parent families in the Shire are experiencing housing stress, followed by 20 percent of group households and 14 percent of lone person households. Owing to this susceptibility to severe housing stress, these household types (one parent, lone person and group households) are also more likely to be in social housing than other household types.

FIGURE 25: NUMBER OF HOUSEHOLDS EXPERIENCING RENTAL STRESS, 2016

Source: SGS Economics and Planning (2020).

The prevalence of rental stress is likely to increase as the Shire’s population grows. Without any intervention, the number of households in rental stress in Mansfield LGA could rise by 39 percent to 465 over the next 20 years. In the next 20 years, there could be 247 lone person households in rental stress.

TABLE 10: RENTAL STRESS BY HOUSEHOLD TYPE, 2036

Homeless Living in Social Severe rental Moderate Total Demand for social Housing stress rental stress and affordable housing Couple family with children 0 6 25 23 54 Couple family with no children 0 7 26 27 60 Group household 0 0 12 13 25 Lone person household 28 52 45 121 247 One parent family 0 22 21 36 79 Other family 0 0 0 0 1 Total 28 87 130 220 465 Source: SGS Economics and Planning (2020)

Those households most in need of assistance are eligible for placement in public housing. In Mansfield LGA, there are currently 87 social housing dwellings available in 2019, which represents approximately 1.4 percent of all dwellings.33 Another 736 households are on the priority access and register of interest waiting to move and transfer to a social housing property in the Ovens Murray (Wangaratta/ Benalla) Region (which includes Mansfield LGA).34 There remains a shortfall between the number of households requiring assistance and the number of available dwellings, a gap estimated currently at approximately 248 houses. If the State Government continue to adopt a relatively passive approach to investment in social housing, and the number of social housing dwellings in Mansfield remains stable, it can be expected that this gap in provision will increase to 378 houses by 2036.

To put this figure in context, the housing demand estimates suggest that about 1,094 dwellings in total are needed to accommodate the future population to 2036. To address income related housing need and stress would require 35 per cent of future dwellings to be social and affordable rental dwellings.

33 Department of Health and Human Services (DHHS), Housing Assistance Delivery Data 2017 – 18. 34 Department of Health and Human Services (2020), Victorian Housing Register and transfer list by local area – March 2020.

5.5 Absentee landholdings Almost half (47 percent) properties in Mansfield Shire are owned by people who live outside of the municipality (non-resident ratepayers). This is a trend that is commonly seen in coastal towns and inland areas that attract many tourists. In some areas, such as coastal areas in South Gippsland or the Surf Coast, the proportion of non- permanent homeowners can be as high as 90 percent. People may purchase second (or subsequent) dwellings in the Shire for a variety of reasons). A survey conducted in 2007 found that, at the time, the main reason for non-residents purchasing a property in the Shire was to use as a holiday home or weekender (41 percent). Other major reasons for purchasing a second home in Mansfield were for retirement/ possible retirement, lifestyle and recreation or leisure. Figure 26 and Figure 27 show the top Local Government areas from which non-resident ratepayers originate.

The largest number of non-resident ratepayers come from the north-eastern municipalities of metropolitan Melbourne, as well as major regional centres of Shepparton and Greater Geelong.

FIGURE 26: LOCATIONS OF NON-RESIDENT RATEPAYERS BY LGA

Source (2020), Mansfield Shire Council, Property data.

FIGURE 27: NON-RESIDENT RATEPAYERS BY LGA - TOP 15

Source (2020), Mansfield Shire Council, Property data.

The properties of respondents were primarily located in or near key tourist areas, such as near Lake Eildon (37 percent), near Mt Buller (12 percent), Jamieson (7 percent), Tolmie (6 percent). Other locations included Bonnie Doon (6 percent), Mansfield Township (5 percent), within 5 kilometres of Mansfield (5 percent) and elsewhere (22 percent). It is also difficult to distinguish between homes primarily used by their owners (and their relatives and families), those that form part of the supply (either intermittently or permanently) of tourism accommodation (such as short-term holiday lettings), or those that were made available for permanent rental housing. This is an important distinction. The high number of unoccupied dwellings (40 percent) recorded at the 2016 Census, and the relatively low proportion of visitor households (3 percent), suggests that many are kept as private holiday homes and not made available for short or long term lease. These types of housing have a range of implications for local housing markets, the community and economy, including:

▪ Second home owners can bring income and employment opportunities into an area from the initial purchase price of their property, spending on renovation and improvements, paying local taxes, and spending on food, leisure, and other services.

▪ Demand for holiday and second homes, can put pressure on the local housing market by creating direct competition for specific types of housing that otherwise could be used by permanent residents. This can act to inflate the purchase price of housing, potentially beyond the means of local residents, and contribute to the movement of locals outside of the town or municipality in search of affordable housing options. This is more likely for younger generations for which cheaper housing becomes scarce

▪ Research regarding holiday homes (in South Gippsland) found that this type of housing tended to be larger (average size of six bedrooms).

▪ Tensions are also apparent between the use of residential housing stock as holiday accommodation and the importance of holiday letting to the tourist industry. Offering choice in holiday accommodation is important for attracting tourists to the municipality. However, the higher rates obtained from holiday letting can result in more landlords removing housing from longer-term rentals in favour of short term holiday accommodation. Short supply of long-term rentals can place upwards pressure on rental prices with implications for housing affordability in the Shire.

▪ A fundamental issue in relation to the maintenance of sustainable communities in rural areas is the extent to which the stock of residential dwellings in any community is fully occupied. Dwellings may be empty or irregularly unoccupied for a variety of reasons, impacting the overall sense of community and other social factors.

▪ Holiday homes let by owners who live elsewhere results in money earned from accommodation fees and rents not being retained in the local community. Interestingly, the 2007 survey found that many (36 percent) non-resident ratepayers intended to live permanently in the Shire at some point in coming years. Most expecting to move following permanent retirement (58 percent), while the remainder expected to work full time (mostly within the Shire).

5.6 Sensitive interfaces

Township Approaches The four main approaches into Mansfield Township include Maroondah Highway (west); Mount Buller Road (east); Midland Highway (north) and Mansfield Whitfield Road (north). The approaches play an important role in creating attractive, inviting, and memorable entry experiences for residents, businesses, and visitors. To ensure appropriate design outcomes along the four approaches into the Mansfield Township, built form and landscape guidelines were developed in 2017 as part of the Mansfield Township Approaches Planning Controls and Guideline Study. The guidelines consider the look and function of adjacent residential uses and how they should respond to the character of the approaches, the local environment, and the surrounding context.

Industrial Uses Within Mansfield there are a number of instances where existing residential areas adjoin industrial uses, in particular along Dead Horse Lane (east). Industrial uses can have significant impacts on the amenity of residential uses, including noise, character / appearance, and air quality.

Open Space In some instances, residential lots provide rear and side fencing to open space areas for example to the edge of the future expansion of Botanic Park. This detracts from the open space experience and limits opportunities for passive surveillance.

Ultimate Heavy Vehicle Bypass An Ultimate Heavy Vehicle Bypass was identified as part of the Mansfield Township Structure Plan. The Ultimate Heavy Vehicle Bypass aims to avoid large vehicles using High Street and Highett Street and travelling through the CBD. The route will be along Withers Lane/Dead Horse Lane/ Mansfield-Whitfield Road/Mount Battery Road and Greenvale Lane. The Ultimate Heavy Vehicle Bypass will pass by existing and future residential areas and could also present amenity and safety issues for reside.

5.7 Challenges and opportunities

Challenges ▪ Population growth to 2036 will result in demand for an additional 1,094 dwellings across the Shire by 2036. There is substantial capacity within existing residentially zoned areas to accommodate this demand. This includes sufficient capacity within urban and rural residential areas.

▪ Despite significant capacity within Rural Living Zone areas, a considerable share of recent housing growth has occurred within the Farming Zone. Ad hoc or unplanned development in productive agricultural areas that is unrelated to the agricultural use of the land has implications for the local housing market and the amenity of residents, not to mention its impact on agricultural productivity and potential. Importantly, this also demonstrates that the housing supply in township areas does not match the location of demand for housing people are seeking in agricultural places that are not intended for settlement.

Opportunities ▪ State government policy provides clear direction as to expected population growth and change across the Hume region into the future. The town of Mansfield is identified as a moderate growth location based on its proximity to Wangaratta and Benalla. In addition, state policy supports a consistent approach to planning for rural residential areas and encourages the provision of diverse housing types in appropriate locations.

▪ The population of the Shire is forecast to grow by approximately 2,300 people to 2036, requiring an additional 1,094 dwellings. This growth has been and will continue to be driven by an affluent tree- change market who often have had a long-standing connection with the Shire, often through education or as a holiday leisure destination.

▪ An aging population and smaller household sizes are likely to require diverse housing options, including independent living and medium density dwellings to enable older people to downsize, retirement villages and aged care and shop top housing.

▪ There has been an increasing trend of semi-detached dwellings being built in areas with good access to services and facilities in the town of Mansfield. These types of housing contribute to the overall housing diversity of the Shire.

▪ The Shire has ample residentially zoned land to accommodate projected population growth, with much of the available land located within the town of Mansfield. As a ‘flipside’ to the challenge mentioned above the opportunity exists to consolidate development within existing urban zones and identify preferred development paths to ensure orderly development and efficient infrastructure provision based on a funding plan.

HOW CAN MANSFIELD 2040 SUPPORT SETTLEMENT AND HOUSING?

Mansfield 2040 can: ▪ Support a pattern of settlement that is sustainable and meets the expectations of the community.

▪ Recommend approaches to the rezoning of land to ensure that the provision of residential land matches expected demand, state government requirements and supports a properly functioning housing market.

▪ Propose an infrastructure servicing and funding framework that identifies options for development contributions to reduce the costs to Council of disorderly and ‘out of sequence’ development

▪ Provide clearer policy direction and controls to prevent housing growth in areas that are not suitable for residential development.

▪ Provide policy support for the increased supply of affordable housing, acknowledging that affordable housing provision is primarily the mandate of state and Federal government.

▪ Identify and protect sensitive interfaces between residential and other uses.

▪ Provide policy statements to support provision of preferred housing types.

Mansfield 2040 cannot: ▪ Force developers to provide housing types that are not feasible.

6. ENVIRONMENT AND LANDSCAPE

This section provides an overview of the environment, landscape values and natural hazards in Mansfield Shire. The LGA sits among mountain ranges of State significance and contains waterways and forests of great ecological and biodiversity value.

6.1 Mansfield’s environmental values Mansfield Shire recently adopted an Environment Strategy. Key findings from that Strategy are presented here. The document summarises the Shire’s biodiversity values as follows: The Shire has a diverse environment due to its topographic variation and microclimates and consists of four bioregions, including: Highlands Northern Fall, Highlands Southern Fall, Victorian Alps and Central Victorian Uplands. Located in these areas are Mt Buller and Mt Stirling. The Shire has many flora and fauna species, some of which are listed as critically endangered, endangered, or vulnerable under Environment Protection Biodiversity Conservation Act 1999 (Mansfield Shire Council, 2013). This includes pockets of the vulnerable Striped Legless Lizard found at Mt Battery and Dry Creek and the critically endangered Leadbeater’s possum.35 A large portion (60 percent) of the Shire is public land, in places identified as State and National Parks, State Forests and Nature Reserves (Figure 28). Mansfield is located in a wide valley surrounded by mountain ranges. There are four major valleys in the Shire: Upper Goulburn, Howqua, Jamieson and Upper Delatite.36 The Strathbogie Ranges and The Paps frame the western part of the Shire, while to the north-west is Mount Samaria and the Tolmie Plateau (north). In the east of the municipality is the Great Dividing Range, with Mounts Buller, Stirling, and Timbertop (Warrambat), and the low hills of the Blue Range in the south. These mountains give rise to the Broken, Howqua, Jamieson, Goulburn, Delatite and Big Rivers.37 The municipality is known for its iconic landscapes, and 95 percent of the LGA is also within a Special Water Supply Catchment, with important environmental values. Major water storages in the LGA are Lake Eildon (fed by the Delatite, Howqua, Jamieson, Goulburn, and Big Rivers) and Lake Nillahcootie (fed by the Broken River). These landscape features form the basis of iconic scenery that is of environmental and cultural significance to residents in Mansfield, as well as the broader Victorian community.

Bioregions Landform and biodiversity in the Mansfield LGA are highly varied. More than 60 percent of the LGA is designated Crown Land, and a large part of the Shire falls within State or National Parks, and State Forests (Lake Eildon and the Alpine National Parks, Mount Samara State Park, and the Upper Goulburn State Forest). Across Australia, there are 89 large geographically distinct bioregions based on common climate, geology, landform, native vegetation, and fauna. These are classified under the national ‘IBRA’ system (Interim Biogeographic Regionalisation for Australia). 38 In Mansfield Shire, there are four subregions under the IBRA7 classification (Figure 29):

35 A detailed summary of endangered and vulnerable species is included in the Environment Strategy. 36 Mansfield Shire Council, Mansfield Planning Scheme (Clause 21.01 Municipal Profile), Available from URL: https://planning- schemes.delwp.vic.gov.au/__data/assets/pdf_file/0006/463965/Mansfield_PS_Ordinance.pdf. 37 Mansfield Historical Society, History of Mansfield, Accessed June 2020 from URL: http://www.mansfieldhistoricalsociety.com.au/?page_id=15. 38 The Interim Biogeographic Regionalisation for Australia (IBRA) is a framework for identifying land for conservation. It is a spatial mapping and information tool for vegetation communities and ecosystems. Across Australia, there are 89 large geographically distinct bioregions based on

▪ Central Victorian Uplands: Around the northern and western parts of the LGA, covering Bonnie Doon, Mansfield, Lake Eildon, Goughs Bay, Delatite and Macs Cove. ▪ Highlands – Northern Fall: Around Strathbogie north of Bonnie Doon, as well as east and south of Mansfield, Jamieson extending south to Gaffneys Creek, and north from Howqua Hills to Mirimbah. ▪ Highlands – Southern Fall: Small area on the eastern boundary of the LGA towards Licola. ▪ Victorian Alps: The foothills of Mount Bulla around Howitt Plains, Toombon and Matlock. The landform and biodiversity in Mansfield are protected and managed using a range of approaches at the Federal and State level, including the Environment Protection Act (1970), the Planning and Environment Act (1987), and Environment Protection and Biodiversity Conservation Act (1999).39 Most townships and farming areas are within the Central Victorian Uplands bioregion in the Mansfield Shire, while smaller settlements (for example Jamieson, Merrijig, Mirimbah) in the foothills of the Alps are within the Highlands—Northern Fall bioregion.

FIGURE 28: PUBLIC LAND, STATE AND NATIONAL PARKS IN MANSFIELD SHIRE

Source: SGS Economics and Planning, 2020, based on various datasets. common climate, geology, landform, native vegetation, and species information. Further information is available on the Australian Government Department of Agriculture, Water and Environment website: https://www.environment.gov.au/land/nrs/science/ibra. 39 For further information about the policies and legislation that cover environmental protection and management, refer to the Mansfield Environment Strategy, 2019, prepared by RMCG.

FIGURE 29: BIOREGIONS IN MANSFIELD SHIRE

Source: SGS Economics and Planning, based on various DELWP datasets, 2020.

TABLE 11: BIOREGIONAL CHARACTERISTICS IN MANSFIELD SHIRE

Bioregion Extent Landform Climate Vegetation Features Central Central Lower Palaeozoic Temperate, with warm, Large areas of private ▪ Broken River Victorian Victoria deposits giving rise to dry summers (with land have been cleared ▪ Strathbogie Range Uplands dissected uplands at January usually being for agriculture, with ▪ Puzzle Range higher elevations, the driest month) and only remnants of the ▪ Lake Eildon amongst granitic and cool to cold, wet original vegetation ▪ Ford Inlet sedimentary (with winters. The plains occurring throughout ▪ Brankeet Creek Tertiary colluvial generally receive less much of the region. ▪ Merton Creek aprons) terrain with rain than the adjoining ▪ Broken River metamorphic and old ranges. ▪ Wet woodlands and volcanic rocks which forests ▪ Lake Nillahcootie have formed steeply ▪ Fern gullies ▪ Bridge Creek sloped peaks and ▪ Dry woodlands and ▪ Delatite River ridges. forests on less fertile ▪ Ford Creek hills ▪ The Paps ▪ Heathlands

Highlands – Central part These rugged and highly This bioregion extends The highly dissected ▪ Stony Creek Northern of Eastern dissected uplands have from higher-altitude and rugged landscape ▪ Bog Creek Fall Victoria, moderate to steep snowfields below 900- results in the ▪ Evans Creek northerly slopes, high plateaus, 1,300 metres to an development of an ▪ Howqua River aspect of the and alluvial flats along elevation of about 200 extremely complex ▪ Harrops Folly Great the main valleys. metres. mosaic of floristic Sanctuary Dividing Topographic variation communities. ▪ Goulburn River Range The basic physiographic results in the climate ▪ Jamieson River structure of the Eastern varying greatly within Shrubby Dry Forest and ▪ Big River Highlands is best this region. In general, Damp Forest are Highlands – Central part considered in the amount of rainfall dominant vegetation ▪ Barkley River Southern of eastern conjunction with that of increases and the types on the upper ▪ King River Fall Victoria, the Snowfields temperature decreases slopes, with Wet Forest southerly (Victorian Alps) Region with increasing ecosystems dominant in aspect of the as the important elevation. This region is the valleys including Great formative geological one of the highest Cool Temperate Dividing events are common to rainfall areas of Victoria. Rainforest in the most Range both regions. The two The region experiences protected gullies, regions are a temperate climate, Montane Dry characterized by the with warm, dry Woodland, Montane uplifted and dissected summers and cool to Damp Forest, and remains of ancient cold winters. Montane Wet Forest. erosion surfaces. ecosystems occur in the higher altitudes. Victorian North-east A series of high plateaus This bioregion is ▪ Montane forests and National parks: Alps Victoria and peaks along the generally limited to an woodlands (e.g. ▪ Alpine (part) Eucalyptus Great Dividing Range. altitude between 900 delegatensis forests, The high mountain and 1,300 metres, Snow gum woodland) Landscape features: region of south-eastern where ground is ▪ Heathlands near ▪ Mount Matlock mainland Australia is regularly snow-covered. treeline ▪ Mount Skene part of an uplifted Cool climate with snow ▪ Sub-alpine and ▪ Mount Buller plateau that is bounded in winter, a short tussock-grasslands ▪ Mount Terrible mostly by dissected summer and annual ▪ Sup-alpine and alpine valleys. rainfall above 1000 m. bog communities Source: Based on information from IBRA7, DELWP Bioregional benchmarks, and Royal Botanic Gardens Victoria floral database.

Waterways Six major waterways flow through the region: the Broken River, Delatite River, Howqua River, Goulburn River, Big River and Jamieson River. All of these rivers are catchments for the water storages at Eildon and Nillahcootie and ultimately contribute to the flow and health of the Murray Darling system. These lakes and rivers have significant environmental and cultural value and are significant to the Shire.

Based on the significance of these river systems for catchment health across Mansfield Shire and the region, most of the LGA is subject to planning controls to protect the river system and catchment areas. The Environmental Significance Overlay (ESO1 and ESO2) is summarised in the next section. The policy manages development within catchment areas that are either at high risk, or medium risk, of causing adverse impacts on potable water quality, public health, and the environment.

FIGURE 30: WATERWAYS AND FLOOD-PRONE LAND ACROSS MANSFIELD SHIRE

Source: SGS Economics and Planning, based on various DELWP datasets, 2020.

Declared water supply catchments A large proportion of Mansfield Shire falls within Declared Water Supply Catchments. Land Use Determinations for the catchments seek to ensure development does not compromise water quality.

FIGURE 31: DECLARED WATER SUPPLY CATCHMENTS

Source: http://vro.agriculture.vic.gov.au/dpi/vro/gbbregn.nsf/pages/dwsc_gb

Biodiversity The current state of biodiversity is considered to be good in terms of extent, although fragmented and disconnected. Many large, old trees and native pastures occur on private land, while public land supports large forest blocks. Common vegetation types are herb- rich forest Ecological Vegetation Class (EVC), which is classified as ‘least concern’ or ‘depleted’ and Valley Grassy Forests which are considered vulnerable to extinction. According to the Mansfield Environment Strategy (RMCG, 2019), the LGA contains several important vegetation and fauna communities, some of which are critically endangered: Golden Sun Moth, and Leadbeater’s possum. Several others are classified as endangered or vulnerable (refer to Appendix 2 of that Strategy). Across the LGA, several planning controls are in place to recognise and protect environmentally significant vegetation features. In Victoria, there are three planning controls which enable Council to protect vegetation, ecological features, or significant landscape qualities.

TABLE 12: LANDSCAPE AND ENVIRONMENT OVERLAYS IN MANSFIELD SHIRE

Overlay Purpose Use in Mansfield Shire Environmental The ESO is used where there are ▪ ESO1 (Catchments at high risk of water quality impacts) Significance Overlay environmental constraints on and ESO2 (Catchments at medium risk of water quality impacts). (ESO) development, or where other important Clause 42.01 ecological values occur, such as coastal ▪ These overlays emphasise the importance of lake and river systems across the Shire for irrigation, potable water or riparian habitats. In Mansfield, two supply to townships, and for recreation. Refer to Figure 30 different ESOs have been identified. ▪ The controls seek to balance development and land use activities on and near the waterways to ensure there is no detriment to the catchment. ▪ Depending on lot size, a planning permit may be required to construct dwellings, outbuildings and associated works connected to a sewer system.

Vegetation Protection Specifically designed to protect ▪ There is one VPO schedule (VPO1) in Mansfield Shire. Overlay (VPO) significant native and exotic vegetation in ▪ The VPO applies to four small sites across the LGA, on Clause 42.02 an urban or rural environment. This Euroa-Merton Road, at the former Tabletop Township, on control can be applied to individual trees, Buttercup Lane in Merrijig, and near Lovick’s Hut on the Bluff Track. Refer to Figure 29 stands of trees or areas of significant ▪ In these locations, the identified vegetation is considered vegetation. to have historical, botanical, or environmental Its purpose includes to minimise the loss significance, as well as being valued by the local of vegetation due to development, and community. recognise protection areas as places of special significance, natural beauty, interest, and importance. The policy is also used to enhance habitat, and habitat corridors for indigenous flora, and encourage the regeneration of native vegetation. Significant Landscape The purpose of the SLO is to identify and ▪ The SLO1 covers land on the approach to the Alpine Overlay (SLO) conserve the character of a significant National Park, recognising that views to Mount Buller, Mount Stirling, Mount Timbertop, and other mountains in Clause 42.03 landscape, where areas have a significant this region are of state significance. aesthetic or visual importance. There are ▪ The SLO2 covers land along the Howqua River, which is a Refer to Figure 29 two Significant Landscape Overlays Heritage River under the Heritage Rivers Act (1994), and applied in Mansfield Shire. has environmental and significance for recreation (canoeing, fishing), cultural heritage sites (Frys Bridge, early settlement and mining features), fish fossil beds and habitat for the spotted tree frog.

Source: Mansfield Planning Scheme, Victorian Heritage Database.

FIGURE 32: PRE-1750 MODELLED VEGETATION COVERAGE (ECOLOGICAL VEGETATION CLASSES)

Source: SGS Economics and Planning, based on various DELWP datasets, 2020.

FIGURE 33: 2005 VEGETATION EXTENT (ECOLOGICAL VEGETATION CLASSES)

Source: SGS Economics and Planning, based on various DELWP datasets, 2020.

Landscape features Mansfield Shire sits within a stunning landscape setting, where many townships within the Central Victorian Uplands are green and gently undulating. Merton, Woodfield and Bonnie Doon are surrounded by the Puzzle Range to the south-west, and the Strathbogie Range to the north. Around Maindample, the Bald Hills and Mount Samaria frame views north. Panoramic views to Lake Eildon, Mansfield, surrounding farmland, and Mounts Buller, Stirling and Timbertop can be viewed from the Paps Lookout, at 700m elevation. Mansfield sits within the Great Dividing Range landform, and views east are to the Glenroy Hills, Mount Buller, Mount Stirling and Timbertop. Further north, the Wombat Range sits on the LGA boundary.

FIGURE 34: VIEW EAST ALONG MOUNT BULLER ROAD, FROM FIGURE 35: REMNANT RIVER RED GUMS ON PRIVATE THE CENTRAL VICTORIAN UPLANDS TO THE HIGHLANDS AND PROPERTY PROVIDE NATURAL LANDMARKS IN SHORT- AND VICTORIAN ALPS LANDFORMS MEDIUM-RANGE VIEWS THROUGHOUT THE UPLANDS

Source: SGS Economics and Planning, 2020. Source: SGS Economics and Planning, 2020.

Near Macs Cove, Sheepyard Flat and Tobacco Flat are part of the Highlands bioregion and surround the Howqua River, where several campgrounds highlight the popularity of this wilderness. This location includes the site of Frys Bridge and several buildings and sites where gold mining occurred in the 1860s. Howqua River is listed on the Victorian Heritage Register owing to its cultural significance as a spectacular landscape, and based on its use for gold-mining. Like other rivers across the Shire, the site is also culturally significant to the Taungurung who have a continuous connection to Mansfield’s landscapes for more than 60,000 years. Several walking tracks that reach the River are also identified as having local heritage significance, and protected by the Heritage Overlay planning control. For much of its length the Howqua River valley is deep and narrow. However, in a few areas it has widened slightly and a narrow floodplain has developed, such as at Sheepyard Flat, Frys Hut, and in the lower section as the river approaches Lake Eildon. The river valley is essentially forested. Along its mid-section, the south side of the corridor is flanked by spectacular rocky scarps, including The Bluff. The mountains flanking the valley are usually snow-covered in winter.40 In addition to its popularity for recreation (camping, 4WD touring, fishing, bushwalking and canoeing), the Howqua River valley is a significant biodiversity corridor, containing rich and diverse macroinvertebrates (in the river waters), significant floral communities and the endangered spotted tree frog. Devonian fish fossil beds are also found along the corridor and riverbed. The Goulburn River stretches from Lake Eildon to the Murray River near Echuca. The river corridor has significant in-stream and riparian values, and it has ideal conditions for trout making it a popular destination for fishing. The river has high scenic value, particularly where remnant River Red Gums are present, providing a visual contrast to the surrounding landscape. Riparian vegetation along the river provides important habitat for the squirrel glider,

40 Land Conservation Council, Rivers and Streams Special Investigation: Final Recommendations Report, June 1991. Available online from URL: http://www.veac.vic.gov.au/documents/376-RiversandStreamsSpecialInvestigationReport.pdf.

brush-tailed phascogale, and barking owl—all rare species in Victoria.41 From Lake Eildon to Toolamba, there are several areas of public land through which the Goulburn River can be accessed, where it flows across a broad floodplain. Big River forms the western boundary of the LGA and is also identified on the Victorian Heritage Database. The character of the river valley changes markedly along its course. In its upper section, above Big Bend, it tends to be open, and small alluvial flats adjoin the river. Similar conditions occur below Enoch Point, but the middle reaches flow through a magnificent V-shaped valley. This section of the river can be viewed from the Big River 4WD track that runs south from Enoch Point, following a probable access route developed during the gold-mining era. In places, the track is only one vehicle wide, and it clings to the very steep eastern side of the valley. Many popular camping and picnicking areas are located in the more open sections. Recreational activities are enhanced by the scenic qualities, and the river winds between gravel shoals and falls over rock outcrops, separated by long quiet pools.

FIGURE 36: PICNIC SPOT NEAR LAKE EILDON FIGURE 37: GENTLY ROLLING PLAINS SOUTH OF MANSFIELD

Source: SGS Economics and Planning, 2020. Source: SGS Economics and Planning, 2020.

In the southern part of the LGA, Mount Matlock is a peak north of Jericho within the Victorian Alps bioregion. Nearby, several sites have local heritage significance for their conservation values, and are identified under the Heritage Overlay in the Mansfield Planning Scheme. The landform of the Great Dividing Range and nearby dissected plateaux such as the Strathbogie Range lends several iconic landscape features to the Mansfield LGA.

41 Ibid.

FIGURE 38: ICONIC VIEWS ACROSS LAKE EILDON, FROM FIGURE 39: FARMLAND WITH LONG-RANGING VIEWS TO WELL- GOUGHS BAY VEGETATED HILLS, BETWEEN JAMIESON AND MANSFIELD

Source: SGS Economics and Planning, 2020. Source: SGS Economics and Planning, 2020.

The Taungurung Country Plan identifies that sites of cultural significance are in a vulnerable state across the Shire, and planned development across the Country is extensive. The map below illustrates the extent of lands identified likely to contain places and artefacts of cultural heritage significance. To date, this project has not involved conversations with the Taungurung Clans Aboriginal Corporation, however their involvement/interest will be sought.

FIGURE 40: LANDSCAPE FEATURES ACROSS THE MANSFIELD LGA

Source: SGS Economics and Planning, 2020, based on various datasets.

Lake Eildon Lake Eildon is an important storage for irrigation, and also a popular holiday resort. It is home to a substantial houseboat fleet and also attracts fisherman and water skiers. The lake has both public and private harbours where water craft are moored. Facilities around the lake include caravan parks, camping grounds, motels, houseboat hire and services, picnic areas and public boat ramps (Figure 41).

FIGURE 41: LAKE EILDON BOATING AND FACILITIES MAP

Source: https://www.g-mwater.com.au/downloads/gmw/Storages/Lake_Eildon_Map_WEB.pdf

6.2 Natural hazards

Climate change42 The challenges we face today threaten the health of our natural environment and the health of our people and liveability of our communities. Climate change has already started to impact the Hume region where the Mansfield Shire is located. The climate has already become warmer and drier and forecasts indicate that:

▪ Temperatures will continue to rise year round ▪ Fewer frosts will occur ▪ More frequent and more intense downpours ▪ More hot days and warm spells ▪ Less rainfall in autumn, winter, and spring ▪ Harsher fire weather and longer fire seasons. Global surface air temperatures have risen by around 1° C over the last 100 years due to human activity. Atmospheric concentrations of carbon dioxide (a heat trapping greenhouse gas) are more than 40% higher now compared to before the industrial revolution. The changing climate has the potential to impact significantly on primary production, infrastructure, tourism, health and community and the environment. This may include:

▪ Changed distribution of pests and diseases ▪ Increased risk of bush fires ▪ Changed pasture growth ▪ Reduced water security ▪ Increased flood risk ▪ Increased maintenance costs ▪ Reduced snow depths and shorter seasons ▪ Risks to tourists in unfamiliar conditions ▪ Increased stress on health and emergency services ▪ Amplification of existing threats to biodiversity ▪ Changed habitats ▪ Contraction of alpine ecosystems (DELWP, 2015). Climate change is amplifying threats to biodiversity. The spread and establishment of pest plants and animals across Victoria continues to be an issue. Throughout the Goulburn Broken Catchment, there are over 80 noxious weeds, which are declared under the Catchment and Land Protection Act 1994. Noxious weeds are classified into four categories: State Prohibited, Regionally Prohibited, Regionally Controlled and Regionally Restricted. The impacts of changing climate are heightened by the pressures of our growing population. The population has grown steadily since the early 2000s, and Mansfield Shire has seen more housing developments occurring across the landscape including small allotments and rural living allotments on larger acreage. This is also putting significant pressure on existing infrastructure, including the waste water treatment plant and waste disposal mechanisms (transfer station and landfill). Future developments should consider environmental impacts, potential impacts on large scale agricultural land and the natural rural amenity that Mansfield Shire is known for.

Bushfire Much of the freehold land in the shire surrounds areas of native bush and can incorporate large tracts of privately owned remnant vegetation. As a result, a large proportion of the municipality is subject to possible bush fires, which is recognised in the application of the Bushfire Management Overlay and identification as being a Bushfire Prone Area.

42 RMCG, Mansfield Environment Strategy 2019-2023. Available from URL: https://www.mansfield.vic.gov.au/sites/default/files/Draft_Mansfield_Env_Strategy.pdf.

FIGURE 42: BUSHFIRE MANAGEMENT OVERLAY

Source: Mansfield Shire Council

Flooding Mansfield Shire sits in the upper Goulburn catchment, which collects rainfall from Woods Point to Mount Skene and the western end of the Alpine National Park. Mansfield Shire can experience both riverine and flash flooding. Riverine flooding typically occurs when the Goulburn or Jamieson Rivers (or both) break their banks and overflow after heavy or prolonged rainfall in the steep catchments of the surrounding state forests and Alpine National Park. Flash flooding can occur at any time of year during and after heavy rain or thunderstorms. The hilly terrain makes flash flooding more likely as water can gain both speed and power as it flows downhill. Flash flooding in September 2010 caused the largest recorded flood in the Jamieson area with 27 properties and the Jamieson caravan park flooded. This flood peaked soon after midnight, dropping away early the following morning.43 Fords Creek flows through the township of Mansfield and is the primary source of flooding on the township. In 2014, the Goulburn Broken CMA prepared the Mansfield 1% AEP Flood Mapping Project identified 100-year ARI flood levels and recommended that:

▪ The 1% AEP (100-year ARI) flood levels determined from this flood study (Figure 6-1) are used to set appropriate floor heights for buildings and extensions proposed in the study area.

43 Victoria SES, Mansfield Shire Council Flood History, Available from URL: https://www.ses.vic.gov.au/get-ready/your-local-flood- information/mansfield-shire-council.

▪ The Municipal Flood Emergency Plan (MFEP) be updated by Mansfield Shire to reflect the outcomes of the flood study. ▪ Amend planning zones and overlays be amended to reflect the study findings.44 Planning Scheme Amendment C15, in 2016, amended the extent of the Urban Floodway Zone and applied the Floodway Overlay and Land Subject to Inundation Overlay to parts of the municipality prone to flooding or inundation. Earlier in this chapter, Figure 30 shows major waterways and areas that are declared as flood-prone using planning zones and overlays across the Shire. The planning overlays applied under Planning Scheme Amendment C15 cover flood extents modelled by the Goulburn Broken Catchment Management Authority in the 2014 study.

Land management The Environment Strategy (2019-2023) identifies that Mansfield Shire’s natural landscapes and biodiversity are under pressure from population growth, subdivision, and climate change. Noxious weeds (Gorse, Blackberry, St John’s Wort, Paterson’s Curse, Chilean needle grass), pest animal species (deer, rabbits, foxes), and native vegetation clearing risk reducing the significance of biodiversity values in the Shire. The quality of private land management and land along roadsides also varies, where fuel reduction activities and knowledge about health soil management is sometimes limited. The Environment Strategy contains several recommendations that will inform future planning work45:

▪ Develop a land use strategy

▪ Ensure native vegetation protections in the Mansfield Planning Scheme continue to be implemented.

▪ Identify mechanisms to protect large red gum trees surrounding the Mansfield Township via a tree protection overlay, or policy statement in the Mansfield Planning Scheme

▪ Plan and develop a network of biodiversity corridors

▪ Protect and promote native vegetation on private property, particularly historic red gums

▪ Plant native trees and grasses, and use locally indigenous plants and recommended planting lists from the Revegetation Guide for the Goulburn Broken Catchment in new development.

44 GBCMA (2014) Mansfield 1% AEP Flood Mapping Project. 45 The Environment Strategy contains several other land management recommendations that could be achieved by Council and community members, but that would not affect planning controls in the Mansfield Planning Scheme. Further information is in that Strategy: https://www.mansfield.vic.gov.au/sites/default/files/Draft_Mansfield_Env_Strategy.pdf.

6.3 Challenges and opportunities

Challenges ▪ Climate change poses significant challenges to the Mansfield Shire, to its environmental and biodiversity values, capacity for primary production, and as a tourism destination. Wetting and drying regimes are shifting, with longer, hotter, and drier summers. Heavy rainfalls have potential to cause flash flooding and exacerbate erosion issues, especially where land has been cleared.

▪ There are several layers of legislation that protect forests and State/National parks. Despite this, biodiversity on public land is still threatened by some land clearing, and interface challenges where public land abuts private properties. This can include excess runoff from primary production activities, into waterways.

▪ Extensive land clearing has occurred across the Central Victorian Uplands where more land is in private ownership and used for a range of primary production activities. In some cases, there are policy gaps that do not provide sufficient guidance about appropriate principles and parameters for subdivision in Farming Zone areas. The Vegetation Protection Overlay (VPO) extent is very limited across Mansfield Shire, and native vegetation protection under Clause 52.17 (Native Vegetation) of the Mansfield Planning Scheme provides several exemptions to enable vegetation removal, especially related to agricultural activities and for land management.

Opportunities ▪ There are opportunities to encourage revegetation on private property across the Shire, for example by establishing offset sites to mitigate impacts from land clearing for local development. Locations where biodiversity corridors could be connected using offset site revegetation could be identified as an action later in this project. Council already works with local Landcare groups, and these initiatives could be further expanded, as well as targeted towards significant gaps in biodiversity corridors/habitat links.

▪ The Significant Landscape Overlay (SLO) is applied to key road corridors that provide views to the Alpine National Park and Great Dividing Range; however, there are several places where significant views and some alpine approaches have no statutory protection in the planning scheme.

▪ The Environmental Significance Overlay (ESO) has been applied extensively across the Shire, to manage and protect waterway health in the Significant Catchment Areas. However, the tool does not recognise broader or other ecological values across the Shire such as significant tree species, or specific riparian corridors.

▪ The Goulburn River is a Heritage River that supports threatened species. It contains important cultural heritage sites, provides water for agriculture and urban centres in and downstream of the basin, and supports recreational activities such as fishing and boating. The Delatite River as high economic values and supports the threatened Murray Cod.46

▪ The Taungurung Country Plan highlights the need to protect tangible and intangible heritage across Mansfield Shire. It emphasises that there is a need to find out more about what exists and how to protect it. This has become especially crucial where several cultural sites (such as burial sites, axe-grinding sites, and scar trees) are threatened by development or other land use encroachment and require immediate protection; many sites were also reshaped and redefined by bushfires in 2010. The plan contains an action to undertake major audit of sites. Were that audit undertaken, there is an opportunity for planning policies to protect sites and enhance other actions taken under complementary legislation.

▪ Biodiversity priorities identified in the Environment Strategy can be further leveraged through Mansfield 2040 and will be explored in the next stage of the project, including: ‘Protecting and enhancing ecological connectivity’ and ‘Increasing native vegetation extent.’

HOW CAN THE MANSFIELD 2040 SUPPORT LANDSCAPE VALUES, AND THE NATURAL ENVIRONMENT?

Mansfield 2040 can: ▪ Identify areas where further work could be undertaken to enhance biodiversity corridors. ▪ Direct development away from places where significant ecological, vegetation or cultural landscape values would be undermined. ▪ Provide statements that would strengthen policy support for ecological, vegetation and landscape protection and enhancement in the Mansfield Planning Scheme. ▪ In consultation with the Taungurung Clans Aboriginal Corporation, the plan could identify (if, or where appropriate) and document places of cultural heritage significance for further recognition and protection in planning policy. ▪ Identify areas with built environment heritage values or scenic landscape values that could be investigated for protection and enhancement in future planning policies.

Mansfield 2040 cannot: ▪ Alter current land use or development regulations under the current Mansfield Planning Scheme regulations. Any recommended changes as a result of the Plan would require further preparation of a Planning Scheme Amendment, where further community input would also be invited.

46 Goulburn Broken Regional Catchment Strategy

7. BUILT ENVIRONMENT AND HERITAGE

Each of Mansfield’s townships and settlements has a unique character; distinguished by size, architectural qualities, cultural heritage features, topography, and vegetation. Land use planning can help to preserve and enhance the features that make each of Mansfield’s places special.

7.1 Built environment As a rural municipality, Mansfield’s built environment is characterised by rural towns and villages set within an agricultural and natural landscape setting. Many towns have large open spaces, street trees and well-established vegetation, and waterways nearby, creating an attractive atmosphere around township and rural residential settlements. The Mansfield Planning Scheme (Clause 21.04-2 Character) highlights that ‘character can be distinguished as urban and rural character.’ Across the Shire, character in Mansfield Township and smaller towns like Goughs Bay, Bonnie Doon, Jamieson and Merrijig, is influenced by a range of features including lot size, topography, space around houses, and how much vegetation there is on both public and private properties. This section explores the character of settlements across the Shire, as a starting point for discussion with the Mansfield community about the future of urban and residential places.

Rural township character The character of Mansfield’s built environment varies across the Shire. The concept of township or urban character is one that can have a range of meaning, and can be difficult to define. In planning systems across Victoria, the term ‘neighbourhood character’ is used to describe the combination of public and private realms. Every property, public place or piece of infrastructure makes a contribution, whether great or small. It is the cumulative impact of all these contributions that establishes neighbourhood character. 47 According to the Department of Environment, Land, Water and Planning (DELWP), the key to understanding character is being able to describe how the features of an area come together to give that area its own particular character. Breaking up character into discrete features and characteristics misses out on the relationships between these features and characteristics. Understanding how these relationships physically appear on the ground is usually the most important aspect in establishing the character of the area. It is common for some areas to be described as having ‘little or no character’, and other areas as having ‘lots of character’. These sorts of descriptions confuse neighbourhood character with attractiveness. All areas have a character in the same way that all people have a personality. In some areas the character may be more obvious, more unusual, or more attractive, but no area can be described as having no character.48 This chapter sets out the key physical features of Mansfield’s towns and villages. The interplay between different features forms the basis of a place’s unique character. Those features may include:

▪ Topography (flat, undulating, hilly, physical barriers) ▪ Diversity of house types ▪ Built form (buildings: height, size, setbacks, roof form, heritage, site coverage and space around houses) ▪ Extent of rear gardens and private open spaces ▪ Landscaping and vegetation (size, type, native/non-native, mix) ▪ Size and spacing of lots

47 DELWP, Planning Practice Note 43: Understanding neighbourhood character, January 2018. Available from URL: https://www.planning.vic.gov.au/__data/assets/pdf_file/0024/12786/PPN43-Understanding-Neighbourhood-Character.pdf. 48 Ibid.

▪ Fences (style and height). As highlighted above, this information will provide a baseline upon which the community can discuss what features and characteristics of the towns to celebrate, enhance and protect, or where places could be improved, in future. Some recommendations in the upcoming Mansfield 2040 may focus on urban design and residential development (for example), which could become part of planning policies or design guidelines as part of the Strategy’s implementation.

The Shire’s main towns As set out in Chapter 5, several new residential areas have been established in Mansfield in recent years, mainly clustered around the Mansfield township. This section provides a description of the main towns and villages across the Shire. Following input from the community, the descriptions and aspirations for different places will be updated and included in the Planning Strategy. Rural and regional centres have several unique characteristics, compared to typical suburban areas. These differences stem from their historical development, and are perpetuated by community expectations or values. The layout, size and spacing, stages and location of development (sometimes sporadic), community expectations and landscape context all affect the way a place looks and feels: its character. The character of different towns in Mansfield may be affected by several different processes, for example: population growth and further development, shifts in the demographic profile (for example, toward an older population with different housing needs), climate change (more frequent floods or fires), or ongoing impacts from COVID-19. The Shire’s main towns are Mansfield and Bonnie Doon. Smaller villages and settlements are Goughs Bay, Merrijig, Jamieson, Howqua and Macs Cove, Merton, Maindample, the Upper Delatite settlements, and Woods Point.

FIGURE 43: MANSFIELD TOWNSHIPS AND SETTLEMENTS

Mansfield Mansfield is a strategic service centre for the Hume/Goulburn and Alpine region, and is the largest town in the Shire. It contains civic, business, retail, educational and community services.

As set out in the Mansfield Structure Plan, the township of Mansfield was surveyed in 1851, following the squatting boom of the late 1830’s and the establishment of large runs for grazing stock. The two main streets were laid out to allow the turning for horse and bullock wagons.49 Large areas of land around Mansfield’s commercial centre are zoned for residential and rural lifestyle purposes. Most General Residential Zone (GRZ) land is clustered around the town centre, while there is one new housing development in the town’s north (Kareen Hills Estate on Mansfield-Whitfield Road) that is also zoned GRZ. Mansfield Township’s residential areas are characterised by wide streets with on street parking, large lots and street trees. Some recent medium density housing has recently been constructed within the town boundary, to the south and east (for example, Highton Lane). There are several instances where residential development has formed linear strips along roadsides, with paddocks behind, in land zoned for General Residential throughout the township. Current policy seeks to contain this, emphasising that along the major routes into and out of the Mansfield Township should be sensitive to the role that the town plays as an ‘Alpine Approach’. It emphasises that development along the Maroondah Highway on the western entry into town should be designed in such a way that the ‘gateway’ to the Alpine areas is promoted and themed so it becomes obvious to locals and visitors that Mansfield Township has embraced its heritage and capitalised on its attractiveness. Mansfield Township’s residential areas are characterised by wide streets with on street parking, large lots, and street trees. There is a range of development styles and eras, with heritage-listed buildings also dotted throughout the town. Several different land release fronts and eras of development characterise the subdivision pattern and feel of different streets. The character of Mansfield is linked to its heritage, which is expressed most clearly through its extant original buildings in the commercial area and close to the town centre. These include prominent buildings within the central retail area of High Street, as well as less obvious residential buildings. As shown in Figure 44, more urban lot sizes (ranging between 300-1,000 square metres) are clustered around the Mansfield Township centre, between Maroondah Highway and Malcolm Street, as well as to the north-east of town in the Kareen Hills Estate area, off the Midland Highway. Residential character varies greatly across the town, and suburban areas are often interspersed with a range of community, tourism and recreation infrastructure activities.

49 Mansfield Shire Council, Mansfield Structure Plan, 2015.

FIGURE 44: MANSFIELD TOWNSHIP LOT SIZES

Source: SGS Economics and Planning, 2020.

Bonnie Doon Bonnie Doon is the gateway to the High Country, and is connected to the Lake Eildon foreshore. Although a high proportion of houses (68 percent) are holiday homes, Bonnie Doon is Mansfield’s second largest town and is highly valued for its landscape setting on the Lake Eildon foreshore. It is an attractive town catering for a significant permanent population, as well as a substantial number of non-resident landowners and tourists. Bonnie Doon is serviced by reticulated water and sewer infrastructure. The lake and nearby Great Victorian Rail Trail are key environmental features and tourism drawcards for the town. Residential development in Bonnie Doon is clustered mainly to the north of Maroondah Highway, while there are small areas of General Residential Zone (GRZ1) south and east of the town, on Maintongoon Road and Hutchinsons Road. The town contains the Bonnie Doon Recreation Reserve, Cemetery Reserve, and a caravan park. There is a small area of commercially-zoned land north of Maroondah Highway. In current planning policy, the town is promoted as a place for affordable and attractive housing choices, with reticulated water and sewer, excellent proximity to water views, with a lakeside atmosphere. The Mansfield Planning Scheme suggests Bonnie Doon is an appropriate site for some residential infill, as well as housing for tourism, holiday homes and retirement living.

FIGURE 45: BONNIE DOON LOT SIZES

Source: SGS Economics and Planning, 2020.

There is a range of lot sizes across Bonnie Doon’s residential area, from large suburban blocks of 700 to 1,000 square metres, with a small number of much larger blocks. The residential character is typified by:

▪ Timber weatherboard, single and some two-storey dwellings in a range of construction eras from Federation to present ▪ Low, open post-and-wire, some wire mesh, and some timber picket fences ▪ Hipped and gabled roof forms, a mixture of tiled and corrugated iron ▪ Well-established vegetation around dwellings, with predominantly exotic gardens ▪ Generous side and rear setbacks ▪ Large, established tree planting in median strip along Phillip Street and around the war memorial off Bon Crescent ▪ In the eastern parts of the town along Zimmerman Road and east of the Recreation Reserve, as well as Maintongoon Road, character is more open and rural with unsealed roads and unmade verges.

Smaller settlements The Shire’s smaller townships and settlements are described further below. The list contains places that are zoned for General Residential, Low Density Residential, or included in a Township Zone. These are places where state government policies around housing and neighbourhood character apply to residential development types. Such regulations do not apply in the Farming Zone, although it is recognised that agricultural areas are also places to live, with unique character which is often recognised using other planning tools like the Significant Landscape Overlay (refer to Section 6.1 for more information).

TABLE 13: TOWNSHIP CHARACTER

Township Key features and character elements Merrijig Merrijig is located in the Upper Delatite Valley, and is a tourist gateway to Mount Buller and Mount Stirling. It supports the local community with a small commercial centre. The town is currently serviced with reticulated water and sewer, however further large-scale residential development would require upgrades to current infrastructure. Local character in Merrijig is defined by views along Buller Road and from private property, to the nearby Mount Buller and Mount Stirling. Some properties also front the Delatite River. The gentle topography creates opportunities for long-ranging views to the mountains. The proximity to mountain and rural views lends Merrijig an alpine atmosphere and a popular tourism location. Development in Merrijig follows the Mount Buller Tourist Road, and current plans discourage the creation of new access to the road. Upper Delatite The Upper Delatite settlements are made up of Sawmill Settlement, Alpine Ridge and Pinnacle Valley, and settlements Mirimbah. The towns are clustered on Mount Buller Tourist Road, east of Merrijig towards the Alpine National Park. The towns cater for a permanent resident population, alongside several non-resident landowners, holiday makers and tourists. The towns are constrained by bushfire risk and infrastructure constraints. The character in these towns is defined by long-ranging views to the Alpine National Park, especially along Mount Buller Tourist Road. Topography through the towns in gently undulating, climbing through the foothills of the Great Dividing Range. Remnant River Red Gums along roadsides define short-range views and frame development across the Upper Delatite Settlements, especially along the river corridor. Residential development is typically located close to the road, with hallmarks of rural lifestyle development: large dwellings with a series of outbuildings, significant trees, and open, post-and-wire fences with farmgate entrances. In many places, development is screened from the road by established trees and thick vegetation on private and along the verges. Jamieson Jamieson is an attractive local service centre catering for the surrounding rural community and tourists, as well as a substantial number of non-resident landowners. There is no reticulated sewer in the town. Due to the extent of vegetation in and around the town, bushfire risk is high in this location. The town is located alongside the Jamieson River, and curved streets follow the valley’s topography. The town’s topography dictates dwelling siting in some locations, where housing directly abuts the road or has a very narrow front setback. Given the scale of vegetation around private properties and on public land, Jamieson has a sense of lushness, enclosure and seclusion, framed by dark green hills around the township. Housing in Jamieson is often low-scale single dwellings of timber or brick construction, with hipped and gabled roofs, and well-established gardens with significant trees. There is a variety of lot sizes in town, ranging from 700 square metres to 0.15 hectares. Roads are sealed with unsealed verges, and several roads are framed by avenues of street trees, creating green canopies overhead. Given this greenery, topography and sense of seclusion, Jamieson feels like a small hamlet unique from Mansfield’s other small settlements. Howqua and Howqua and Macs Cove are two small settlements in the Howqua River valley, separated from by Lake Eildon and Macs Cove the river. The location is highly valued by the Macs Cove community for its peaceful and quiet, scenic, and natural setting which includes Lake Eildon, the Howqua River, and surrounding mountains. The two settlements are popular destinations for holiday homes. Housing in and around Howqua and Macs Cove is a mixture of development eras, however a remote and rural character is established in both townships based on: ▪ Predominantly timber and some brick dwelling construction ▪ Dwellings sited in relation to views rather than with direct frontage to roadsides ▪ Large lots with gravel driveways, and generous side and rear setbacks ▪ Significant vegetation on public and private property, and along roadsides ▪ A mixture of native and exotic vegetation on private property ▪ Unsealed road verges ▪ Open post-and-wire fencing styles ▪ Sheds, water tanks and outbuildings familiar to rural lifestyle settings

Township Key features and character elements ▪ Views to surrounding hillsides and mountains and to Lake Eildon in some locations.

Merton Merton is a small settlement off the Maroondah Highway, and the first township on the western edge of the Mansfield Shire. Merton and Hut Creeks flow through the town and it is located alongside the Great Victorian Rail Trail, and some rural properties offer accommodation for tourists visiting the Shire. The Merton Racecourse on Merton-Euroa Road hosts turf races and holds an annual Merton Picnic Cup on New Years’ Day. Housing in Merton is characterised by a small number of houses clustered along Shaws Road, and Merton-Euroa Road within the Township Zone (TZ). Some land on the south side of Maroondah Highway near the Merton Cemetery reserve is subdivided into smaller allotments between 0.2-0.5 hectares and is currently undeveloped. Development features include: ▪ Generous front setbacks, generally a minimum 20 metres ▪ Established trees (native and exotic) planted around dwellings and outbuildings (sheds) ▪ Water tanks and outbuildings familiar to rural lifestyle settings ▪ Unsealed roads and verges, and driveways ▪ Development era and construction materials vary, with some timber construction and hipped tin roofs, while other houses are brick construction with tiled roofs.

Goughs Bay and Goughs Bay is a small village nestled in the hills, on the edge of Lake Eildon and bordering national parks. It is a Mountain Bay popular destination for recreation and access to Lake Eildon: swimming, fishing, water sports, bushwalking, and cycling. Goughs Bay is a key tourist destination in the Shire, and there are many visitors over both the summer and winter holidays. To the east, Mountain Bay is an undeveloped area currently subject to a Rural Living Development Plan, intended for development for a range of tourist and residential accommodation, recreation and water-based facilities and commercial activities. Lots throughout Goughs Bay range in size from around 700 square metres to 0.3 hectares, with some larger lots. Goughs Bay was originally planned to act as a settlement catering predominantly for non-resident land owners and holidaymakers. However, there is an increasing trend towards permanent occupation. There is no reticulated water or sewer. Residential development in Goughs Bay is defined by: ▪ Dwellings take advantage of topography and orient towards Lake Eildon with large windows and often two storey buildings ▪ Range of construction eras and materials, with many houses constructed during 1960s-70s with a typical lakeside holiday home design, on stilts/reverse living and large verandahs oriented towards the Lake ▪ Large garages and sheds associated with boats ▪ Low or no front fences ▪ Often limited vegetation in front yards/screening views, with established trees in side and rear yards.

Maindample Maindample is a small settlement whose community value the quiet, family friends and relaxed atmosphere within a rural and bushland setting. It currently operates as a small local service centre, and as a town appealing to people who desire a small town lifestyle. There is no reticulated sewerage. Development across Maindample sits on a plateau with a sense of big skies, framed by surrounding low and rolling hills. Land clearing has occurred for agriculture, but several remnant significant trees dot paddocks throughout the locality, as well as some planted shelterbelts along paddock fencelines. Housing is low (predominantly single storey), with hipped and gabled corrugated iron roofs. The streetscape character lends itself to a rural lifestyle feel, with unsealed roads, wide, unmade verges, and post-and-wire fencing. There is a sense of spaciousness, and there are long-ranging glimpses through properties to the paddocks and hills beyond the town. Woods Point Woods Point is an important heritage town, appealing primarily to those interested in the town’s history, outdoor pursuits, and the natural attractions in the surrounding area. There is no reticulated potable water or sewerage connected to the town. The town lies within the Goulburn River valley, and is surrounded by national parkland. Development in Woods Point is nestled close to the roadside, and several buildings relate to the town’s settlement during the Gold Rush. The town is framed by treed hillsides, where Scott Street cuts between two ridgelines. Off the main road, some housing sits prominently on slopes, or below the road level. Off the main road, roadsides are well-vegetated and often enclose short-ranging views along winding bush roads.

FIGURE 46: LOT SIZES IN MAINDAMPLE (LEFT) AND JAMIESON (RIGHT)

Source: SGS Economics and Planning, 2020.

FIGURE 47: LOT SIZES IN GOUGHS BAY (LEFT) PLUS HOWQUA AND MACS COVER (RIGHT)

FIGURE 48: MERRIJIG AND SURROUNDS (TOP) PLUS MERTON (BOTTOM)

Planning frameworks for urban design and town character The town boundary of most places listed above is defined by the extent of General Residential or Township Zone, set within a broader Farming Zone, State or National Park context. The General Residential (GRZ) and Township Zone (TZ) are subject to state planning policies which require new residential development to by sympathetic to identified character values. The Mansfield Planning Scheme highlights that many settlements across the municipality are not connected to reticulated sewer or water, and several are bushfire prone due to the extent of vegetation, topography and other environmental factors that increase fire risk. A local policy also discourages strip development along main roads and highways. To date, this has been limited by the extent of TZ or GRZ and limited infrastructure (sewer/water), which has directed residential growth into the Mansfield Township.

Victoria Planning Provisions The VPPs are the basis of Planning Scheme content in Victoria and provide a suite of State Planning Policies, Zones, Overlays and Particular Provisions that can be implemented, where relevant, to each municipality and include provisions that can be varied to adapt to local conditions. Neighbourhood character and respectful design are concepts that are introduced in the State Planning Policy Framework and repeated in various parts of the VPPs. These concepts are embedded into Clauses 54‐ 56 (ResCode) of all planning schemes, which are used throughout the state to assess new residential development, as well as residential zones and some overlays. Understanding both the effectiveness and the relevance of these policies and provisions to residential development in rural and regional areas is necessary before determining any recommendations for change to these provisions

Precinct Structure Plans In addition to conceptual approaches to multi‐lot development, physical elements of design play a critical role in the way a development is able to respond to or respect township character. These aspects can be embedded into policies such as precinct structure plans (PSPs) and incorporated into a local planning scheme to control development more explicitly in a specific area. Precinct Structure Plans (PSPs) are statutory documents designed to guide future growth via a framework for development and landscape management for an area over a specified time period (usually 30 to 50 years). The purpose of such a document is to provide plans, objectives, requirements, and guidelines to govern development and ultimately achieve a future vision. PSPs require systematic review to ensure short, medium, and long term goals are ‘on track’ to implementing the plan’s vision; and that measures proposed in the initial PSP are achieving desired outcomes that work towards that vision. PSPs can include the following information: ▪ Protection of prominent high points in open space, so these are protected for the community to enjoy the views, and the trees these parks will contain will be the highest features in the landscape rather than house roofs. ▪ Alignment of key roads to provide views to prominent features of the area (for example, hilltops and lakes). ▪ Retention of prominent existing vegetation that contributes to the character of the area in open space and custom road cross sections. ▪ Lower density of dwellings per hectare is outlined (11‐12 dwellings per hectare as opposed to 15‐16 in Melbourne metropolitan growth areas) to reflect the larger average lot sizes in existing towns. ▪ Diversity of streetscapes and open space outcomes to avoid homogeneity across precinct structure planned areas. ▪ Use of barrier kerb and minimum size of street trees in road cross sections. ▪ The new neighbourhoods outlined in the PSPs take their names from existing localities, features and road names of the area, to establish a sense of identity for those areas ‘from day one’. ▪ Wider feature roads placed along ridgelines to protect them from development, so that trees along the road corridor will be the highest features in the landscape (rather than dwelling roofs).

Residential design guidelines In addition to a Precinct Structure Plan (which has already been prepared for Mansfield Township), local design guidelines that will achieve preferred local character outcomes in Mansfield Shire’s smaller settlements could be added to a local policy in the planning scheme. The guidelines can include direction about public realm design, building design, subdivision design, walkable neighbourhoods, and preferred types of vegetation to be planted.

7.2 Places of cultural heritage significance Many places, natural areas and buildings hold heritage significance across the Mansfield LGA. Heritage is an important aspect of local character and identity for Mansfield. It is unique and authentic, provides a connection to the past and can enrich a community’s appreciation and experience of a place. The heritage significance of several places and features within the Shire have been recognised through registration on the Victorian Heritage Register (VHR) or through the application of the Heritage Overlay in the Mansfield Planning Scheme. The VHR lists and provides legal protection for heritage places and objects that are significant to the history and development of Victoria. It can include:

▪ Heritage place: buildings, trees, parks and gardens, streetscapes, archaeological sites, cemeteries, precincts, and structures such as bandstands.

▪ Heritage objects: furniture, shipwrecks, relics, archaeological artefacts, equipment, transport vehicles and everyday articles that contribute to an understanding of Victoria’s history. Places which do not meet the criteria of the Heritage Council of Victoria may be of local significance and may merit inclusion in the Shire’s Heritage Overlay. As well as covering places listed on the National Trust Heritage Register of the National Trust of Australia (Victoria), there are a broad range of categories for including features under the Heritage Overlay, including places or features that are of local heritage significance because of:

▪ Cultural or natural historical significance ▪ Rarity, representativeness and/or research potential ▪ Aesthetic or technical significance ▪ Strong or special association with a particular community or cultural group for social, cultural or spiritual reasons. ▪ Special association with the life or works of a person, or group of persons, of importance in our history. While Mansfield has a rich natural, cultural, and built heritage, there are gaps in the knowledge of the Shire’s heritage assets, particularly sites of Aboriginal cultural heritage and in rural areas and the smaller settlements. There are a few places that are formally acknowledged and protected. In 2014, the Shire undertook a Heritage Survey to identify places of heritage significance. The purpose of the heritage study was to identify, assess and document post-contact places of cultural significance and to make recommendations for their future conservation. Stage One of this survey identified 32 places, predominantly in the Mansfield and Jamieson townships, of heritage significant. The Heritage Overlay was subsequently applied to these places via Amendment C39 to the Mansfield Planning Scheme. Most of these heritage places are commercial buildings located along the High Street in the Mansfield Township.

FIGURE 49: PLACES COVERED BY THE HERITAGE OVERLAY IN MANSFIELD

Source: Mansfield Planning Scheme, Clause 43.01 (Heritage Overlay), 2020.

FIGURE 50: PLACES RECOGNISED UNDER THE HERITAGE OVERLAY IN MANSFIELD TOWNSHIP (LEFT) AND JAMIESON (RIGHT)

Source: Mansfield Planning Scheme (2020)

Taungurung cultural heritage Taungurung cultural heritage can be found across Country as evidenced in the many Cultural Heritage Management Plans (CHMP) held on file by Taungurung Clans Aboriginal Corporation. CHMPs identify and assess the potential impact of a proposed activity on Aboriginal cultural heritage.

FIGURE 51: AREAS OF ABORIGINAL CULTURAL HERITAGE SENSITIVITY

Source: Aboriginal Victoria (2019)

Cultural mapping highlights Taungurung cultural heritage including art sites, rock art, natural resources, flora and fauna, birthing trees, scar trees, burial sites, waterholes, our rivers and waterways, and post colonisation massacre sites and missions. A significant amount of Taungurung cultural heritage has been damaged, destroyed, removed or lost.

TAUNGURUNG COUNTRY PLAN: CULTURAL HERITAGE “Establish ongoing support and investment for a major audit – cultural mapping activity – on Taungurung Country – from the tops of our mountains to our waterways and tributaries, including tangible and intangible heritage.”

In recent years, wildfires have redefined the Taungurung cultural heritage landscape, in some instanced destroying cultural heritage and in others uncovering and allowing access to cultural material on mountaintops previously not accessible and understood by current land managers.

Since 2009, the TCAC has been recognised by the State of Victoria as the Registered Aboriginal Party (RAP) for cultural heritage on Taungurung Country and is working to find out more about what exists on Country and how to protect identified heritage. The Taungurung Country Plan identifies as a priority the identification and protection of cultural heritage sites, including vulnerable art sites that require immediate protection,

State planning policy supports the conservation of places of heritage significance, including Aboriginal cultural heritage significance. This is underpinned by strategies promoting the identification and protection of natural heritage sites and man-made resources; encouraging appropriate development that respects places with identified heritage values and ensuring that an appropriate setting and context for heritage places is maintained or enhanced. The Goulburn, Howqua and Big Rivers have been declared Heritage Rivers under the Heritage Rivers Act 1992, which has implications for land use in the vicinity of watercourses.

7.3 Challenges and opportunities

Challenges ▪ There is a lack of documentation and research into the significance of the extant built heritage of Mansfield. ▪ Lack of identification of the Shire’s heritage assets, including Aboriginal cultural heritage. ▪ Rural and regional centres have a number of unique characteristics when compared with metropolitan or typical suburban development. The differences stem from their historical development, and stages of residential growth. In Mansfield Township, there are several growth fronts extending into the surrounding rural lifestyle and farming areas that are not well-connected back into town. ▪ In Mansfield, infill development may change the urban character in some places.

Opportunities ▪ The tourism and economic potential of the local heritage. ▪ The importance of the heritage values of the Big and Howqua rivers. ▪ Given that there are relatively few examples of heritage / valued buildings within Mansfield, it is particularly important that the buildings identified are retained, celebrated, and complemented by future development.

HOW CAN MANSFIELD 2040 SUPPORT BUILT ENVIRONMENT AND HERITAGE?

Mansfield 2040 can: ▪ Aim to ensure new development preserves and respects the heritage features and places.

▪ Include commentary about what people value most about their area, and what character elements they would like to see changed or retained in the future (including, trees, vegetation, bushland and natural habitats).

▪ Identify and document buildings, places and sites that have important cultural significance, and set out policies to enhance and protect those places.

▪ Recognise and document the unique character of Mansfield Shire’s towns and settlements, to encourage future development that respects the look and feel people value today.

▪ Identify a preferred future character for Mansfield Shire’s towns and settlements, that demonstrates where and how some character changes may be sought – for example, to improve design outcomes and enhance the look and feel of residential areas.

Mansfield 2040 cannot: ▪ Require only one form of housing.

▪ Supersede the current planning scheme requirements in terms of new development and subdivision regulations. For this, some further investigation and planning scheme amendment work would be required.

8. ECONOMIC DEVELOPMENT

The Shire of Mansfield has a diverse economy, with strengths in agriculture, tourism and population serving industries. It is a growing and buoyant economy, driven by rising incomes, increasing business turnover and a breadth of recreational opportunities and attractions. Proactive planning will support the Shire’s economy to respond and adapt quickly in the face of ongoing change and uncertainty.

8.1 An overview of business and employment in Mansfield Mansfield Shire is currently preparing the Mansfield Commercial and Industrial Land Use Strategy. The findings of the Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report are summarised in this chapter. Mansfield township is the primary location for business and employment in the Shire, featuring a vibrant town centre and hosting several productive outlying commercial and industrial areas. Smaller towns such as Bonnie Doon, Goughs Bay, Merrijig, Sawmill Settlement and Jamieson provide a supporting economic role, with many of these settlements popular as visitor destinations. The Shire benefits from ski tourism with Mansfield township acting as the primary support town for Mount Buller which is a 50-minute car trip away. Mansfield is also located on the end of the Great Victorian Rail Trail and adjoins Lake Eildon and Victoria’s high country. The regional centres of Shepparton, Wangaratta and Benalla are within one hour of the Shire by private vehicle, while Melbourne is approximately two hours away. At the regional level, Mansfield Shire forms one of twelve local government areas of the Hume Regional Development Australia (RDA) region, and one of six local government areas in the High Country Tourism Region, promoted by Tourism North East. The Shire’s economy is one of the strongest performing economies in the Hume Region, with output growing at 1.95 percent per annum since 2010.50 In 2016, there were more than 3,200 jobs in the Shire. Employment has grown at a rate of 1.7 percent per annum, supporting a strong local labour market. The Shire has a low rate of unemployment compared to other regional areas; two percent at the beginning of 2019, compared with 4.6 percent across the remainder of regional Victoria. 51

More than 75 percent of people who live in the Shire also work in Mansfield, and the LGA also draws workers from neighbouring municipalities. The number of businesses operating in the Shire has been expanding. In 2018, there were over 1,200 businesses, including 442 businesses that employed staff. Critically, the number of businesses with a turnover of more than $100,000 per annum has increased substantially. 52

50 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 9. Neighbouring economies are significantly larger yet are not growing as strongly. The Shire of Wangaratta ($1,376M in 2018 output) has grown at .69% annually since 2010 while Benalla ($691M in output), grew at 1.27% annually since 2010. Alpine and Murrindindi experienced declines in annual output since 2010 of -.44% and -.25% respectively. 51 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 9 52 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 9

For the past decade, the structure of employment and industry has been relatively stable with retail (13%), accommodation and food services (13%), education (11%) and agricultural (11%) jobs making up a high proportion of the Shire’s employment base. While the composition of employment has been relatively stable, there is evidence of underlying change in the focus of the local economy. Specifically, the number of people employed in the delivery of services has been growing, which is evident in the ongoing growth of education, training and professional service employment, as well as the corresponding growth in the number of enterprises involved in these sectors. The composition of local retail jobs is also changing with the focus of local retail employment and enterprises shifting from merchandise-based trade to the food and beverage industry. Over the past decade, the number of enterprises and number of people employed in merchandise based retail has been in decline while conversely food and beverage based retailing has emerged as a growing form of employment in line with broader consumption trends. Consultation with local business indicates that, like all High street based retail globally, the township is being impacted by the online economy. The township’s retail economy, unlike many other High Streets, is, nonetheless, bolstered by the impact of visitor expenditure - hence the limited number of retail properties that are currently vacant within the township. In the future, employment projections for the broader Hume region project above trend employment growth in the education, construction, accommodation and food service sectors. To 2046, Deloitte Access Economics 53 projects annual average employment growth of one per cent. Future economic growth will continue to depend on the household sector, the Shire’s agricultural industry and the visitor economy. The size of the Shire’s labour pool limits the capacity of Mansfield to attract major manufacturing uses. The Shire might, nonetheless, attract new agricultural and horticultural greenhouse based enterprises. Small scale specialised manufacturing and agriculturally based technical support services might also establish in the Shire. Policy at the state and regional level aims to encourage vibrant and diverse regional economies by:

▪ Supporting growth in a range of employment sectors,

▪ Protecting and strengthening existing and planned employment areas, improving access to jobs closer to where people live.

▪ Encouraging appropriate new and developing forms of industry, agriculture, tourism and alternative energy production, and

▪ Facilitating regional, cross-border and inter-regional relationships to harness emerging economic opportunities.

8.2 The visitor economy All year round leisure and recreational opportunities attract significant numbers of mostly domestic visitors to the Shire. In 2018, there were an estimated 556,000 visitors to the Shire, contributing over $180 million to the local economy.54 As is well known, the Shire functions as a major gateway to Victoria’s ski resorts including those at Mount Buller and the resorts within the Mount Buffalo National Park. The Shire is also a focus for water-based recreation, with Bonnie Doon, Jamieson and the Howqua areas attracting large numbers of tourists in the warmer seasons. The Shire’s popularity as a holiday and recreation destination results in large fluctuations in its population. Over peak vacation periods, campers and visitors expand the Shire’s temporary population significantly.

53 Deloitte Access Economics (2016), The Current and Future State of Victoria, 54 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 12

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Forecasts of future visitation project that the Shire could attract an average annual visitation of more than 784,000 by 2029. However, these forecasts may be impacted by the ongoing COVID-19 pandemic, which is having substantial impacts on the tourism industry globally.55 The local visitor economy faces additional risks as a result of changes in the climate. Hotter and drier landscapes contribute to health and safety risks for nature based recreational visitors and may limit summer time accessibility to many locations. Hotter conditions are also projected to impact on ski conditions. According to research by Infrastructure Victoria, by 2050 there is the potential for the ski season to be 30 to 80 days shorter. For the Hume region the value of the tourism economy exceeds $1.3 billion of which ski based tourism is a substantial component.56 Encouraging tourism development is a priority at the state level, with an ambition to maximise the economic, social and cultural benefits of developing Victoria as a competitive domestic and international tourist destination. In particular, the Hume Regional Growth Plan includes objectives to:

▪ Support opportunities for nature-based tourism throughout the region,

▪ Support large commercial tourism uses in rural areas of lower agricultural value and away from areas identified as strategic agricultural land.

▪ Facilitate rural tourism activities that support agricultural enterprises such as cellar door and farm gate sales and accommodation in appropriate locations.

▪ Support the region’s network of tracks and trails and activities that complement and extend their use.

8.3 Mansfield’s commercial and industrial precincts The Shire’s commercial, industrial, and retail precincts service the needs of the local population, industry and the Shire’s substantial visitor economy. Mansfield township functions as the Shire’s primary commercial area serving both the convenience and weekly shopping needs of residents and the recreational and consumer needs of the Shire’s many visitors. Secondary commercial areas at Bonnie Doon, Merton and Jamieson service the convenience and energy needs of local residents, visitors and the many non-residents that maintain second homes in these locations.

State policy seeks to encourage the ongoing consolidation of retail, commercial and community uses within existing activity centres, only supporting out-of-centre development where it is of net benefit to the community in the region served or provides small scale shopping opportunities that meet the needs of local residents.

The Shire’s industrial precincts are located around Mansfield township in former fringe areas that over the past five years, as the township’s footprint has expanded outward, have begun to interface with new residential development. The Shire’s industrial precincts include the Dead Horse Lane/Lakins Road Precinct, which is a major trades precinct, and the Mount Buller Road Precinct which includes light industrial uses along Crosbys Lane. State Planning Policy emphasises the need to provide an adequate supply of industrial land in appropriate locations (including large sites) and to protect uses in industrial zones from encroachment by sensitive uses that would impact on their viability. Likewise, manufacturing and storage industries that generate significant volumes of freight should be located proximal to key freight routes. A brief profile of each of the Shire’s commercial and industrial precincts is provided below, summarised from Section 4 of the Mansfield Commercial and Industrial Land Use Strategy: Background and Issues report.

55 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 12 56 Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 12

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FIGURE 52: COMMERCIAL AND INDUSTRIAL PRECINCTS IN MANSFIELD TOWNSHIP

Source: SGS Economics and Planning, 2020 based on various DELWP and Mansfield datasets, 2020.

Mansfield Central Business District The Mansfield township Central Business District (CBD) is the main service centre for the Shire and many residents beyond the Shire’s boundaries that live within 30 kilometres of the township (for instance, permanent residents of Mount Buller). The CBD includes 31 hectares of zoned commercial land and takes in the High Street shopping strip and commercial uses along Chenery and Highett Streets. There are two mainline supermarkets, several ski hire and sales stores, numerous local real estate agents, a national timber and hardware retailer, a variety of food and beverage outlets and speciality shops and boutique clothing stores. Within this area 25 percent of this land (approximately 8 hectares) is currently occupied by residential dwellings. Food and beverage outlets are generally clustered along the eastern end of High Street and around the intersection of Highett and High Streets. The western end of High Street is a focus for bulky goods retail, ski hire

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and hardware supplies. The CBD also includes a variety of public services including the Shire’s council offices, the tourist information centre, police station, fire services and post office. Sites around the south eastern corner of Highett and High Streets already form a services hub that includes the Magistrates Court, the Post office, the Shire’s council offices, fire services and social services. Unlike many other retail shopping strips across Victoria, the township’s CBD currently enjoys a high level of retail occupancy. Growth in professional services and public administration is likely to see the need for between 1,500 and 2,000 square metres of commercial office space within the Shire to 2036.57

Mount Buller Road The Mount Buller Road precinct primarily supports wholesaling and big box retailing precinct that including speciality shops and trade supplies. This area includes some of the more contemporary commercial built form in the Shire with many of the commercial complexes along Mount Buller Road having been developed in the past 20 years. Holiday rentals, a vestiary clinic and larger format commercial and industrial uses, such as mechanics and building supplies, are also contained in the precinct. There are no vacant premises within the precinct and there is limited vacant zoned land available to support further expansion. Land use in the area to the south of Mount Buller Road is incompatible with the current zoning. Over past decade, the Mixed Use Zoned land along Crosbys Lane has been redeveloped into a small number of contemporary industrial premises that now accommodates automotive enterprises. The Mixed Use Zone is not currently compatible with the current function of this area.

Dead Horse Lane Dead Horse Lane is a major centre for the provision of local trades and light industrial enterprises in the Shire. The area currently supports construction, electrical, timber and furniture enterprises, tree and landscaping services, earth moving, galvanising, transport, auto repairs, recycling, plumbing and glass enterprises. The area also supports non-commercial uses including a place of worship and an automotive club. The precinct includes 32 hectares of land zoned for industrial use. Currently, all lots are occupied; however, many are underutilised. Further intensification of the precinct is likely to have detrimental impacts on the residential properties that abut to the south. Dead Horse Lane is unsealed and as such are not suited to heavy vehicle traffic. Many of the enterprises along Dead Horse Lane, nonetheless, rely on heavy vehicles for supply and distribution purposes. Accordingly, the quality of road infrastructure represents a major issue for the ongoing growth and development of this area.

Lakins Road Precinct The industrial land to the south of Lakins Road currently supports the Council’s depot operations and does not include private enterprises. This precinct includes approximately 24 hectares of land zoned for industrial purposes, of which 18 hectares is currently vacant and unaffected by flooding as designated by the Urban Floodway Zone (UFZ). As with Dead Horse Lane, Lakins Road is unsealed roads and as such are not suited to heavy vehicle traffic.

Monkey Gulley Road Monkey Gully Road precinct is a small precinct (17 hectares) south of the town centre.

57. Mansfield Shire Council (2020), Mansfield Commercial and Industrial Land Use Strategy: Background Issues and Options report, Pg 20

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The area is currently used for waste disposal and recovery which is an appropriate use given its relatively secluded location. While there is vacant available land within the precinct to support new industrial uses and expansion, the steep and undulating typography of the location is not suitable for new development. New waste disposal, recovery and recycling activities might, nonetheless, be supported for the precinct.

Stock Route/ Saw Mill Site This site, located adjacent the Maroondah Highway, comprises only a single lot and is surrounded by incompatible residential and public uses. The site lacks appropriate road infrastructure to support heavy vehicle access and abuts residential land to the west, east and north and a wetland to the south.

Industrial uses in the Farming Zone The lack of serviced, commercially available industrial land has resulted in several commercial and industrial uses establishing within the areas zoned for farming. In particular, land to the east of the Sewerage Treatment Plant.

Townships and settlements

Bonnie Doon Bonnie Doon is the Shire’s largest commercial area outside Mansfield township providing convenience and energy services to local residents and visitors. The town includes 3.5 hectares of commercial land made up 15 parcels several which are either vacant or used for residential purposes. Bon Court is the main commercial area of the town which includes a general store, food and beverage outlets, personal services and a fuel outlet. There are also vacant commercial sites and land parcels in Bon Court Future visitor growth to the Shire is likely to result in increased demand for fuel, accommodation and the provision of food and beverage services in Bonnie Doon. The Bonnie Doon Hotel which is a hospitality, packaged liquor and accommodation facility operates under the Farming Zone.

Jamieson, Goughs Bay, Howqua Inlet Jamieson, Goughs Bay and Howqua are small settlements either on or near Lake Eildon. As a result, they each have a high rate of absentee landowners and swell significantly during peak periods. Of these towns, Jamieson incorporates the largest commercial area which includes automotive, fuel, convenience and food and beverage enterprises. Goughs Bay includes a local convenience outlet.

8.4 Preliminary discussions with local businesses Consultation was recently undertaken with local real estate agents and business in the preparation of the draft Economic Development Strategy and Commercial and Industrial Land Strategy: Background and Issues paper. Key findings from these engagement processes are relevant to development of the Mansfield 2040 and include the following needs with regards to promoting the ongoing economic prosperity of the Shire:

▪ Greater focus on environmental sustainability in economic development.

▪ Increased transport connectivity.

▪ Improved township presentation, amenity, and infrastructure.

▪ Removal of barriers to development associated with planning.

▪ Maintenance and protection of natural assets.

▪ Diversification of the economy.

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▪ Priority areas to support the tourism industry include farmgate, local produce and cellar doors, water- based recreation activities, and fine dining.

8.5 Challenges and opportunities

Challenges ▪ The ageing of the Shire’s population will increase the need to attract greater numbers of younger residents to avoid labour market constraints.

▪ A growing population is resulting in ongoing demand for new housing in the Shire. In some areas, the emergence of residential development is creating conflict with existing employment uses.

▪ While the Shire has strengths in tourism, the sector is highly susceptible to the impacts of climate change other major events, such as the COVID-19 pandemic.

▪ There is limited appropriately zoned and serviced industrial land.

▪ Residential and other sensitive uses are increasingly encroaching on industrial areas.

▪ There is a lack of transport connectivity to support the movement of workers and goods within the Shire, to surrounding regions and beyond. This includes the presence of unsealed roads servicing industrial precincts (Dead Horse Lane, Lakins Road and the Stock Route/ Saw Mill Site) which are not suitable for heavy vehicle traffic.

▪ There is a high degree of land fragmentation across the Shire raises concern for the ongoing, productive use of agricultural land for the traditional mainstays of broad hectare livestock grazing.

Opportunities ▪ The turnover and, in turn, value of local business is growing, which is indicative of the Shire’s underlying economic strength.

▪ The Shire has a high level of employment containment, with a large proportion of residents living and working in Mansfield.

▪ The structure of the local economy is changing to include a greater number of population-serving and professional services jobs.

▪ Population growth and ageing will drive increased demand for consumables and services, including food, personal products, clothing, housing supplies, maintenance, and trades, and personal, aged care, education and health services.

▪ The Shire’s substantial visitor population and positive agricultural forecast presents opportunities to further develop the local agri- and adventure-tourism sectors, including farmgate, local produce and cellar doors, water-based recreation activities, and fine dining.

▪ The diversification of the agricultural base into more intensified farming pursuits such as viticulture and hydroponics offer potential for lots less than 40ha in Farming Zoned areas of the Shire to be used economically and sustainable.

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▪ Localised co-working spaces can offer a balance of social interaction and support and can help separate work/home life.

▪ Mansfield CBD enjoys a high level of retail occupancy and has an established services hub. The table below summarises opportunities and challenges for each of the Shire’s employment locations described above.

TABLE 14: OPPORTUNITIES AND CHALLENGES BY EMPLOYMENT LOCATION

Precinct Central ▪ Lack of dedicated office space. Mansfield ▪ Under current zoning, commercial and retail uses are able to spread into residential areas outside of the (Township) township’s main roads without requiring a planning permit. ▪ Lack of priority areas to guide future retail and commercial expansion.

Mount Buller ▪ Potential for residential encroachment on the precinct’s commercial operations, including from the Highton Road Lane development. ▪ Mixed use zoning along Crosby Lane not compatible with current use. ▪ Limited land available to expand commercial uses.

Dead Horse ▪ Similar to the Mount Buller Road Precinct, the future growth and development of this precinct is reliant on the Lane/ Lakins effective protection from residential encroachment. Road Precinct ▪ Both Lakins Road and Dead Horse Lane are unsealed roads and as such are not suited to heavy vehicle traffic. Many of the enterprises along Dead Horse Lane, nonetheless, rely on heavy vehicles for supply and distribution purposes. ▪ The progress of the area is also reliant on improvements to its transport infrastructure. ▪ The Dead Horse Lane precinct is a fully occupied industrial area. There is some underutilised land within the precinct that might support redevelopment, however, there are currently no vacant sites. ▪ Lakins Road precinct is largely vacant, aside from the Council depot.

Monkey Gully ▪ There is vacant land adjoining the existing industrial precinct that might be used to service the Shire’s industrial Road land needs. The sloping typography of this land, however, makes the land not suitable for industrial expansion. ▪ New waste disposal, recovery and recycling activities might, nonetheless, be supported for the precinct.

Stock Route/ ▪ Not suited to industrial uses or commercial intensification Saw Mill Site Bonnie Doon ▪ Surplus commercial land that is not suited to supporting high volumes of vehicle traffic. ▪ There are commercial uses operating from inappropriate zones. This is also the case in Merton.

Jamieson, ▪ Howqua and Howqua Inlet lack a convenience outlet. Goughs Bay, Howqua Inlet

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HOW CAN MANSFIELD 2040 SUPPORT ECONOMIC DEVELOPMENT?

Mansfield 2040 can: ▪ Identify where more commercial, industrial, and retail land/ floorspace is needed and increase supply through rezoning.

▪ Identify areas which are to be the focus for economic activity, and prioritise investment based on a hierarchy of centres/ locations.

▪ Identify key infrastructure investments to support and encourage the development of employment areas, such transport links, improvements to the streetscape, utilities infrastructure.

▪ Support recommendations from the Economic Development Strategy that could be embedded in planning policy, for example to attract education/training facilities that could support a skills-building program.

▪ Enhance the evidence base for Council to attract funding to provide local business grants, and other local incentives for business creation and/or expansion.

Mansfield 2040 cannot: ▪ Urge the establishment of land uses or businesses which are not feasible

▪ Tackle labour market, skills development and training challenges that are not related to strategic and land use planning.

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9. AGRICULTURE

Agriculture remains a significant contributor to the local economy with the major agricultural pursuits being timber processing, pasture seed production, wool production, prime lamb and beef production. This section provides an overview of the agriculture industry in Mansfield Shire, presents the outlook for the industry and highlights key opportunities and challenges for ongoing productivity.

9.1 An overview of agriculture in Mansfield In 2015-16, agriculture, forestry and fishing supported around 350 jobs (the fifth-largest employment sector) and generated output of around $20 million (the tenth-largest economic sector) (Figure 53). The gross value of agriculture in 2015-16 totalled $60.3 million (a small proportion of the $13.1 billion gross value of Victoria agriculture) with meat and wool the largest sectors (Figure 54). The value of agriculture increased by around $17 million from 2010-11. Most of this increase is attributed to the improvement in meat and wool prices rather than an increase in the number of farms or production. Despite 91 per cent of the water released from Lake Eildon diverted for irrigation purposes, there is very little irrigation development in the Shire. Direct diversion from the Goulburn River and Delatite River supports some irrigated agriculture. Assessment and mapping of land suitability shows that the majority of private land in Mansfield is suitable for agriculture (Figure 55) though the soils types, topography and climate, restrict this to mainly livestock grazing and some cropping. The main soil types (Figure 56) are:

▪ Dermosols - These soils occur in the upland areas. They do not have a strong texture contrast, clay increases with depth, they are usually well drained but can have bleached A2 horizons indicating restricted drainage. They tend to be slightly to moderately acid and have highly variable organic matter content.

▪ Chromosols - Chromosols can be found on the alluvial riverine plains and throughout the uplands. The surface soil textures of these soils tend to be lighter loamy textures and the depth of the topsoil can vary considerably. This can have significant implications for management, affecting soil workability, permeability, crop establishment, moisture availability and erodibility. The subsoils tend to be clay textured soil and are often mottled in colour indicating restricted drainage.

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FIGURE 53: EMPLOYMENT AND OUTPUT, MANSFIELD SHIRE, 2015-16

Accommodation & Food Services Retail Trade

Retail trade

Construction

Education & Training Agriculture, Forestry & Fishing

Health Care & Social Assistance

Public Administration & Safety

Transport, Postal & Warehousing Professional, Scientific & Technical Services Other…

Professional, scientific and technical services\

Other services

Administrative & Support Services Manufacturing

Wholesale Trade

Rental, Hiring & Real Estate Services

Arts & Recreation Services 21 5.16 Electricity, Gas, Water & Waste Services Information Media & Telecommunications…

Information Media & Telecommunications

Financial & Insurance Services

Mining

0 100 200 300 400

Source: Mansfield Shire Economic Profile: 2016 Census Update (2018) Urban Enterprise.

FIGURE 54: GROSS VALUE OF AGRICULTURE, MANSFIELD SHIRE

Cattle and calves

Sheep and lambs

Wool

Fresh tomatoes

Goats

Cherries

Nurseries 2010/11 2015/16 Milk

$0 $5 $10 $15 $20 $25 Millions

Source: Australian Bureau of Statistics.

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Agricultural Versatility Mapping for the Mansfield Shire

FIGURE 55: AGRICULTURAL LAND VERSATILITY

Source: Climate Smart Agricultural Development in the Goulburn Broken, Summary Report for Mansfield Shire Council (2016).

Figure 5: Agricultural Versatility Mapping for Mansfield Shire 1961-1990, 2030 and 2050

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FIGURE 56: SOIL TYPES

Source: Goulburn Broken Land Health Strategy (2017) Goulburn Broken Catchment Management Authority.

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9.2 Agriculture outlook After a long period of low prices, global sheep meat prices increased five-fold and beef prices nearly doubled between 1990 and 2010 driven by rising global demand (especially in China and the Middle East). While the price has remained comparatively high since peaking in 2011, prices have declined and are expected to continue declining over the next few years as supplies respond to increased demand. While output of beef and slaughter lambs has been increasing, domestic consumption of beef and lamb has been steadily declining because of changes to price and consumer preferences, Consequently the industries are increasingly export oriented and influenced by movements and trends in international markets.58 The outlook for the meat industry is positive. Sheep meat production is expected to continue to grow globally and Australia is expected to grow its share of global export to become the leading exporter of sheep meat. The outlook for beef producers is also favourable, however dietary preferences and import access limitations are likely to limit growth. Across the industry, there is a trend towards larger farm size and concentration of agricultural output on larger livestock businesses is consistent with restructure across most agricultural industries resulting in production concentrated amongst a smaller number of producers.59 This trend has been driven by the:

▪ Better financial performance of large farms as evidenced by:

▪ Higher rates of return generated by large farm businesses (measured by output) compared to small farms business60 ▪ High farm cash income from large farms (measured by physical area) than small farms61 ▪ Economies of scale of larger enterprises and capacity to absorb declining terms of trade.

▪ Better total factor productivity (i.e. increase in the level of outputs relative to the resources used or a reduction in inputs) of larger farms compared to smaller farms. Larger scale producers have been able to benefit from the development of the export industry, including the live export trade and larger breeding stock enabling an increase in progeny62 and appear to be able to capture more of the benefits from new technologies.63 Adoption of new technology and expansion of the digital communication network have facilitated farm expansion by supporting farm businesses to:

▪ Farm large areas with low labour inputs

▪ Adopt efficient ‘precision’ agricultural practices

▪ Operate multiple properties across multiple locations. This has become an important strategy in mitigating risk to farm businesses from climate change.

58 ABARE (2008) Productivity in the beef cattle and slaughter lamb industries. 59 Productivity Commission (2005) Trends in Australian Agriculture , and Australian Agricultural and Resource Economics Society (2011) Productivity and Farm Size in Australian Agriculture: Reinvestigating the returns to scale. 60 Productivity Commission (2005) Trends in Australian Agriculture 61 Ibid. 62 ABARE (2008) Productivity in the beef cattle and slaughter lamb industries. 63 Productivity Commission (2005) Trends in Australian Agriculture

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9.3 Lot sizes and land ownership

THERE ARE AROUND 4,300 LOTS IN THE FARMING ZONE, OF WHICH OVER 70 PERCENT ARE UNDER 40 HA IN SIZE AND CONSUME AROUND 34 PER CENT OF LAND IN THE FARMING ZONE (TABLE 15). LOTS OF VARYING SIZES ARE FOUND ACROSS THE RURAL AREAS, IN NO PARTICULAR PATTERN (FIGURE 57: FARMING ZONE LOT SIZES

Source: RMCG, 2020. Figure 58). The Farming Zone ownership data shows that most lots are held as part of a larger tenements with nearly 70 per cent of land held as a tenement of 100 ha or larger (Table 15). The size of most properties in the Farming Zone is consistent with the findings of the analysis of agriculture in the Shire which found that most agriculture in Mansfield is broadacre livestock grazing. There are over 2,400 lots that are less than 20 ha in size. This is a substantial supply of small lots that, and landholders commonly have expectations that they will be able to construct a dwelling on a small rural lot. However, unfettered dwelling development in rural areas has a number of significant consequences, including:

▪ An impermanence syndrome for commercial agriculture – competition for rural land increases, land prices increase, tracts of farmland become isolated, and farmers are deterred from investing in their operations as they anticipate the conversion of their land out of commercial agriculture.

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▪ Rural land use conflict as new migrants in an agricultural landscape have an expectation of a benign rural environment.

▪ Poor development and take up of land in zoned rural living estates.

TABLE 15: LOT SIZES AND LAND OWNERSHIP SIZES, FARMING ZONE

Lots Ownership Area (ha) Number % of all lots Sum of % of total Number % of Sum of area % of total area(ha) area ownerships (ha) area <2 946 22% 485 <1% 145 9% 108 <1% 2 - 20 1,510 35% 13,199 12% 692 42% 5,766 5% 20 - 40 806 19% 24,043 21% 241 14% 7,410 7% 40 - 100 834 19% 47,341 42% 341 20% 19,449 18% 100 - 500 185 4% 47,452 24% 222 13% 43,780 41% >500 0 26 2% 29,104 28% Source: RMCG, based on data provided by Mansfield Shire (2020).

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FIGURE 57: FARMING ZONE LOT SIZES

Source: RMCG, 2020.

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FIGURE 58: FARMING ZONE LAND OWNERSHIP

Source: RMCG, 2020, based on Mansfield Shire Council data (deidentified).

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PLANNING POLICY RELEVANT TO AGRICULTURE State planning policy articulated in the Planning Policy Framework (PFF) provides clear direction for the protection of Victoria’s agricultural base by preserving productive farmland. In support of this objective the PFF includes strategies (amongst others) to:

▪ Identify areas of productive agricultural land, including land for primary production and intensive agriculture.

▪ Avoid permanent removal of productive agricultural land from the state's agricultural base without consideration of the economic importance of the land for the agricultural production and processing sectors.

▪ Protect productive agricultural land from unplanned loss due to permanent changes in land use and. protect strategically important agricultural and primary production land from incompatible uses.

▪ Limit new housing development in rural areas by:

▪ Directing housing growth into existing settlements. ▪ Discouraging development of isolated small lots in the rural zones from use for dwellings or other incompatible uses. ▪ Encouraging consolidation of existing isolated small lots in rural zones.

▪ Give priority to the re-structure of inappropriate subdivisions where they exist on productive agricultural land. The PFF also promotes the ongoing sustainability of the agricultural industry by providing support for industry diversification, adoption of innovative production practices and technologies, and implementation of initiatives that increase flexibility in the face of market shifts and climate change.

Policy in the Mansfield Planning Scheme largely aligns with state policy, promoting growth in the agricultural sector and diversification of the agricultural base through the development of viticulture, horticulture and more intensified agricultural pursuits.

The planning scheme states that:

“It is essential that productive agricultural land be maintained and remains agriculturally viable to ensure the ongoing ability to farm is protected. It is equally important that only marginal rural land, in areas with a minimal visual impact on the rural amenity of the Shire, be developed for small scale rural or rural living style development.”

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9.4 Challenges and opportunities

Challenges ▪ At a macroeconomic level, demand for beef and slaughter lambs is primarily driven by demand form international markets, namely China and the Middle East. Consequently, the industries are increasingly export oriented and influenced by movements and trends in international markets

▪ Small lots in farming areas commonly raise expectations amongst landholders that they will be able to construct a dwelling. Unfettered dwelling development in rural areas has a number of significant consequences; raising competition, and consequently prices, of productive farming land, creating land use conflicts, and syphoning development from areas already identified as appropriate for rural living.

Opportunities ▪ Large areas of land in the Shire are well-suited to agricultural production, with strengths in livestock grazing and some cropping.

▪ The outlook for the meat industry is positive. Sheep meat production is expected to continue to grow globally and Australia is expected to grow its share of global export to become the leading exporter of sheep meat. The outlook for beef producers is also favourable, however dietary preferences and import access limitations are likely to limit growth.

▪ Advancements in technology and expansion of digital communications have enabled producers to expand operations and capitalise on export markets.

▪ Many smaller lots are owned as part of a larger tenements, potentially offering opportunity for consolidation.

HOW CAN MANSFIELD 2040 SUPPORT AGRICULTURE?

Mansfield 2040 can: ▪ Identify Mansfield’s agricultural strengths and areas of productive agricultural land.

▪ Highlight where land fragmentation is likely to be impacting the ongoing viability of agriculture.

Mansfield 2040 cannot: Due to the complexity of rural land use issues, recommendations relating to areas zoned for farming has been determined to be out of scope for the current project. Future, detailed work will be undertaken to provide further detailed guidance on this issue.

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10. TRANSPORT

This section describes the Shire’s existing transport networks, including the roads, trails, bike paths and footpaths that are crucial in enabling people to access the things that they need as part of their everyday lives. The transport network connects communities to shops and services, to opportunities for sport and leisure, and places of education and employment, and facilitates the local economy, by connecting businesses with business and markets in the regions surrounding and beyond.

10.1 The Shire’s transport connections

Inter-regional connections The Shire is connected to neighbouring municipalities, and to larger service centres of Benalla and Wangaratta (and onwards to Melbourne) via two primary road links:

▪ Maroondah Highway which provides the primary connecting route to Melbourne.

▪ Midland Highway which provides the primary route to Benalla, Wangaratta and the wider Hume Region. Each of these highways link further west to the Hume Highway at Seymour and Benalla, and are crucial for connecting Mansfield’s businesses, producers and residents to access external markets and opportunities. The Hume Highway is principal freight and transport link connecting Melbourne to Canberra and Sydney. State and regional transport priorities are focused on investing to take advantage of this strategic network. Figure 59 shows the key transport corridors in the Central Hume sub-region as identified in the Hume Regional Plan.

FIGURE 59: CENTRAL HUME SUB-REGION TRANSPORT NETWORK

Source: Victorian

Government (2014), Hume Regional Growth Plan

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The Shire is also connected to metropolitan Melbourne by the V/line regional coach service, which stopes at Merton, Woodfield, Bonnie Doon, Maindample and Mansfield before terminating at Mount Buller. The service runs from Southern Cross Station in Melbourne to Mount Buller once per day. There is no direct public transport connection between Mansfield and Benalla or beyond to Wangaratta, despite these centres being key locations for service provision for the residents of Mansfield, including health and education services (as discussed in Chapter 11).

FIGURE 60 NORTH EASTERN REGIONAL VICTORIA TRAIN AND COACH NETWORK MAP

Source: V/Line North-Eastern Regional Train and Coach Network (2017).

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Reliable and accessible public and local transport is particularly vital for key groups within the community. These connections can assist:

▪ Older residents to remain independent, mobile and active in their local communities. ▪ Young people need public transport to access work, study and social opportunities, particularly in the evenings and on weekends ▪ Tourists and seasonal workers to access work and leisure opportunities in tourist destinations Strong transport connections between smaller towns and large centres play a key factor in maintaining these towns as great places to live and popular places to visit. The state governments, Connecting Regional Victoria: Regional Network Development Plan 2016, aims to provide a more coordinated and integrated regional public transport network where train, coach and bus services work together to get people where they need to go. The plan sets short, medium- and long-term actions to progressively improve and modernise Victoria’s regional public transport network, including several priorities that are of relevance to Mansfield Shire.

CONNECTING REGIONAL VICTORIA The state government does not identify public transport connections to Mansfield Shire as a strategic priority for service improvements. There are, however, several priorities supporting the development of local transport solutions, such as:

▪ Use of school buses outside of school times

▪ Flexible routes operated by buses, taxis or hire cars

▪ Community transport provided through partnerships with local government and community organisations

▪ Dedicated non-emergency medical transport services to connect rural people to health facilities. Other state government public transport priorities relevant to the Shire include:

▪ Partnering with local councils on precinct planning to make sure active transport is prioritised through good pathways and signs to direct people to public transport services and local attractions.

▪ Providing bike cages and bike racks at regional bus terminals to encourage more cycling

▪ Partnering with Visit Victoria, regional councils, and tourism agencies to promote walking and cycling tourism across Victoria using the regional public transport network

▪ Run a trial of bicycles on bus services in the High Country tourism areas.

There are several existing private and community-run transport service including:

▪ Private shuttle connection operating between Mansfield and Woods Point Via Jamieson

▪ TOAST (Tolmie Offers a Seat to Town) which is a service that matches by matching people driving to Mansfield that have a spare seat with residents who need a ride from Tolmie township. In December 2019, the Department of Health and Human Services and Municipal Association of Victoria approved a project to replicate TOAST (Tolmie Offers a Seat to Town) or similar community transport program in other Mansfield communities.

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Internal road connections Within the Shire, key sealed road transport connections, include.

▪ Mansfield-Whitfield Road which provides a secondary route to Wangaratta and connects the north eastern areas of the Shire to the Mansfield township. The responsible Road Manager for this connection is VicRoads.

▪ Mt Buller Road which provides the only route to the Alpine Resorts at Mt Buller and Mt Sterling, and connects eastern areas of the Shire to Mansfield township. The Mt Buller Road also provides a route into the Alpine National Parks, and other significant recreation areas in the Shire. The responsible Road Manager for this connection is VicRoads.

▪ Jamieson-Eildon Road which provides a scenic route from Jamieson to Eildon township, and an alternate connection to the Maroondah Highway. The responsible Road Manager for this connection is Council.

▪ Merton-Euroa Road which provides a connection between Merton and Euroa, and connects the Maroondah Highway to the Hume Freeway. The responsible Road Manager for this connection is VicRoads.

▪ Mansfield-Woods Point Road from Mansfield to Kevington providing connections to Jamieson, the Jamieson Licola Rd, the Jamieson-Eildon Rd, Woods Point, the Woods Point-Matlock Road, Matlock, and the Matlock-Warburton Road. The responsible Road Manager for this connection is VicRoads. Other important but unsealed road connections include:

▪ Jamieson-Licola Road which provides a route into Gippsland via Licola and Heyfield. The responsible Road Manager is VicRoads for approximately the first 30 km and Mansfield Shire Council for the remaining section until the border with Wellington Shire Council.

▪ Mansfield-Woods Point Road from Kevington to Woods Point, Woods Point-Matlock Road and Matlock- Warburton Road provides connection to Woods Point, Matlock and onwards to Warburton. The responsible Road Manager for this connection is VicRoads.

▪ Walhalla Rd (Matlock to Aberfeldy) which provides a route into Gippsland via Walhalla; The responsible Road Manager is jointly Mansfield Shire Council and Baw Baw Shire Council for approximately the first 20 km and Baw Baw Shire Council for the remainder.

▪ Maintongoon Road/Sonnberg Drive/Skyline Road which provides a scenic route to Eildon township, and completing the road loop around Lake Eildon. The responsible Road Manager is Mansfield Shire Council to the border with Murrindindi. The draft Mansfield Shire Road Strategy 2017 also identified two significant unsealed components within the road network; one connecting Mansfield to Gippsland. The other connecting Mansfield to Eildon. Additionally, it noted that these unsealed connections are a deterrent to tourists and cyclists and are seen to lack of amenity for residents served by these roads. The quality and connectedness of the Shire’s transport links is particularly important in the context of climate change. Climate change poses significant risks to transport infrastructure, with implications for users, owners, manager, and operators. Rising temperatures, increasing incidence and intensity of bush fires and flooding is likely to necessitate changes in design, materials, operating and maintenance practices. These impacts are likely to include:

▪ Expansion stress and movement on steel bridges from extreme temperatures.

▪ Softening of asphalt that may lead to traffic related rutting.

▪ Buckling of pavement under extreme temperatures.

▪ Surface cracks in asphalt road surfaces from high temperatures and solar exposure, infiltration of water and creation of potholes.

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▪ Decreased precipitation, resulting in increased ground movement, changes in the watertable and associated increases in the salinity of soils contributing to accelerated degradation of materials

▪ Significant flood damage to road and bridge infrastructure may result from the increased frequency and intensity of extreme rainfall events. In addition, transport infrastructure is required to ensure the safe movement and evacuation of people during extreme weather events. Having safe, connected, and well-maintained roads is crucial for saving lives in the event of flood or bushfire. The relatively long design life of transport infrastructure means that the infrastructure designed today will need to be able to resist climatic pressures and extremes in 50 or 100 years from now. However, adaptation of infrastructure is likely to only occur as structures reach the end of their design life, as such, maintenance and operations impacts on existing infrastructure also need to be considered.

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FIGURE 61: ROADS BY MANSFIELD SHIRE ROAD STATUS

Source: SGS Economics & Planning, 2020 with Mansfield Shire data.

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Township and settlement transport network The Shire’s street networks, including footpaths and roads, provide important links for vehicle, pedestrian and cycling transport. Each of the towns and townships differ in terms of the extent of formal footpaths, and bicycle links. Mansfield township has the most extensive network road, cycling and footpath network, while smaller townships (with less traffic) accommodate all modes on the local road network. Creating inviting streets and accessible footpath networks is important for supporting the safe movement of people, including promoting active transport modes such as walking and cycling. This is particularly important along connections that link residential areas to local services and facilities such as schools, shops and community facilities. The local road and footpath networks in Mansfield township are shown in Figure 62. This figure also shows the five and 10 minute walking distance from the town centre. There is limited footpath connectivity across the town, particularly within and connecting newer residential areas. Combined with localised flooding and draining issues, poor pedestrian connectivity impacts the accessibility of the town for all residents, particularly for those who are reliant on active transport modes.

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FIGURE 62: MANSFIELD TOWNSHIP FOOTPATH NETWORK

Source: SGS Economics and Planning, based on State Government of Victoria and Mansfield Shire data (2020).

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The state government has adopted a new, strategic approach to planning for transport and placemaking in urban areas. The principles underpinning this approach could be usefully deployed in planning for the Shire’s future urban road, bike, and pedestrian streets and networks. This approach is brief summarised in the text box below.

PLANNING FOR MOVEMENT AND PLACE Movement and Place in Victoria was developed by the Department of Transport as an approach to designing roads and streets that meet the needs of people and businesses while also creating or improving great places across the state. Fundamental to movement and place thinking is recognising that streets perform multiple functions. Transport links not only move people from A to B, they also serve as key places and destinations in their own right. Not all streets can be popular destinations, just as not all streets can prioritise vehicle movement. Sometimes streets and roads change functions several times along the way. It is important to recognise the competing demands between movement and place on our roads and streets. Finding the right balance between the two is fundamental to integrated transport planning. This way of thinking means that when we plan and develop the transport network, we need to consider the breadth of community needs, expectations, and aspirations for the places they live and the roads and streets they pass through. The Framework provides a guide for classifying streets and networks based on the movement and place function, and help turn strategic aspirations for the Shire’s transport network into actions. ▪

Tracks, trails, and bridleways Mansfield Shire is a popular location for recreation walking, cycling and horse riding. There are several popular tracks and trails in the Shire.

TABLE 16: MANSFIELD TRACKS, TRAILS AND BRIDLEWAYS

Type Routes Bushwalking Mt Timbertop The Howqua River Walks Plain Creek Loop and Tramway Walk Howqua Hills Heritage Track Forest Camp Walk

Shared trails Great Victorian Rail Trail Road cycling 7 Peaks The Barwite Loop Howes Creek Road The Boorolite and Gough’s Bay Ride Mansfield, Mount Buller and Jamieson, Tolmie and the Loop Mount Buller and Back Mountain biking ABOM Downhill Clancy’s Run Australian Alpine Epic Mountain Bike Trail Copperhead Beginners Easy Skill Trail Cornhill Trail Intermediate Skills Trail Gangs Gangs Medusa Home Trail Box Corner Link International

Source: Victorian Government (2012), Forest Notes: Walking tracks around Mansfield; Shire of Mansfield (2020), Mountain Biking.

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FIGURE 63: TRANSPORT AND TRAILS ACROSS MANSFIELD SHIRE

Source: SGS Economics and Planning, based on State Government of Victoria and Mansfield Shire data (2020).

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10.2 How do people get around Mansfield today? Not surprising given the size of the Shire and the distance between townships, there is a high rate of car ownership in the Shire. Five percent of households do not have a car, while 40 percent have two cars, and 32 percent have one car. The average number of vehicles 1.9 At the 2016 Census, 64.1 percent of people travelled to work by car, either as the driver or passenger. This is lower than the average for the state at 68.3 percent. A much higher proportion of people walk to work in Mansfield than across Victoria, 7.7 percent compared with 3.2 percent for Victoria. 9.5 of people work from home in Mansfield and do not travel, this is higher than the Victorian average of 4.6 percent. Those who walked to work were mostly employed in population serving industries such as accommodation and food services, retail and education and training. 78 percent of people who live in Mansfield also work within Mansfield. Of those who work outside of the Shire, around 16 percent work in the Benalla LGA, 14 percent in the Murrindindi LGA, and 8 percent in Wangaratta. The remainder of external workers predominantly travel to the eastern and northern suburbs of Melbourne for work, or to regional centres such as Shepparton.

10.3 Challenges and opportunities

Challenges ▪ Mansfield Shire is located off the principal corridor, the Hume Highway, which connects Melbourne and Sydney. This corridor is the focus for state government investment in transport infrastructure, population growth and service provision.

▪ The connectivity of the Great Victorian Rail Trail into the Mansfield township could be improved

▪ New residential areas in Mansfield Township are not well connected to the central business area, and key community destinations. Pedestrian and cycling connections in particular need to be improved.

▪ Existing urban areas do not feature good connectivity for active travel.

Opportunities ▪ The state government supports the development of alternative transport options to fill public transport service gaps. The Shire has an existing, successful community transport initiative that provides a useful model for further services across the Shire. Funding has been secured to expand services to other small communities.

▪ Low traffic and wide streets in many towns supports cycling.

▪ There is an opportunity to use the Movement and Place Framework to identify priority link for different road users, and to target strategies based on this identified hierarchy.

▪ The Shire has a high rate of people who use active modes to travel to work compared with the state average. There is opportunity to further support these travel behaviours.

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HOW CAN MANSFIELD 2040 SUPPORT TRANSPORT?

Mansfield 2040 can: ▪ Identify a hierarchy of transport connections, based on their movement and place function, and provide an action plan that supports their role.

▪ Recommend patterns of land use that support sustainable transport modes.

▪ Identify potential funding methods for delivery and maintenance of transport infrastructure, including development constructions schemes.

▪ Identify items of advocacy for Council to higher levels of government related to transport.

▪ Express support for community-led transport initiatives.

Mansfield 2040 cannot: ▪ Provide a detailed transport asset management plan, including project costs and timing.

▪ Commit the State government to expand the public transport network route or services.

▪ Commit Council budget to transport or other infrastructure projects.

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11. INFRASTRUCTURE

This section provides an overview of the existing infrastructure networks across the Shire. This includes community infrastructure (such as sport and recreation facilities, health, and education services), as well as development infrastructure (telecommunications, waster, water, and energy).

11.1 Community infrastructure Community (or social) infrastructure refers to the facilities, places and spaces that support community members to live health and connected lives, such as kindergartens, aged care facilities and community meeting spaces. It includes facilities like sports and recreation facilities, schools, and hospitals; and programs like Planned Activity Groups (PAG), Learn Local, community exercise classes, adult literacy and community support groups. Community infrastructure can include both public and privately provided facilities and services, including council-owned/run, and non-council (private or other government agency) facilities. Some places and programs are provided by Council, while others are provided by the non-government and not-for-profit (or profit-for-purpose) sectors. Within the Shire, Mansfield Township is the focus for community services and facilities, with some smaller community halls and spaces dotted across other parts in the Shire. The Hume Regional Growth Plan notes that the centres of Wangaratta and Benalla will continue to accommodate and expand higher order community services into the future. This includes provision of sub-regional level health services (Wangaratta) and a range of education facilities, such as public and private schools, TAFE and university campuses.

Community infrastructure and programs in Mansfield Shire In Mansfield Shire, Council owns several community facilities and spaces, such as the Mansfield Family and Children’s Centre, the Youth Centre, Mansfield Community Centre and library. These spaces and other spaces across the Shire host a range of government-run and non-government programs, including (but not limited to):

▪ Child care and kindergarten ▪ Early years’ playgroup ▪ Learn Local ▪ Maternal and Child Health Care (from the Mansfield Family and Children’s Centre) ▪ L2P Driver Program ▪ FReeZa youth events ▪ Mansfield Community Radio ▪ Men’s Shed ▪ Aged Care Planned Activity Groups (PAG) ▪ Spring Senior Citizens ▪ Citizens Support Group ▪ Indoor bowls. Figure 64 and Table 17 summarise the main community facilities across the Shire; most are located south of the Maroondah Highway. The area surrounding Council’s office and chambers has a range of community and civic buildings, including the Country Fire Authority, ambulance, post office, Magistrates Court, and police station. Further south of this civic precinct is the Mansfield District Hospital (MDH) and complementary medical suites. A new Primary Care Centre was opened by MDH in 2015, accommodating an expanded range of allied health services. The hospital is also currently undergoing staged redevelopment to modernise its facilities. Mansfield also contains a range of education services, including primary (public and private) and secondary school, pre-school, kindergarten, and adult education. These facilities are generally clustered south of the civic precinct.

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Mansfield township has a range of recreation and sporting facilities, including a Men’s Shed, football and netball club, bowling club, tennis courts, cycling and walking path and trails. Mansfield township services the smaller townships and settlements of the Shire, which generally have a community hall, and some sport and recreation infrastructure or public open space (parks, reserves).

FIGURE 64: COMMUNITY FACILITIES IN THE MANSFIELD TOWNSHIP

Source: SGS Economics and Planning (2020) adapted from Mansfield Shire Council (2020) and DataVic (2020).

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FIGURE 65: BONNIE DOON (LEFT) AND JAMIESON (RIGHT) COMMUNITY FACILITIES

Source: SGS Economics and Planning (2020) adapted from Mansfield Shire Council (2020) and DataVic (2020).

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TABLE 17: SHIRE OF MANSFIELD COMMUNITY INFRASTRUCTURE

Infrastructure type Facility Health ▪ Mansfield District Hospital ▪ Dental ▪ GP, mental and allied health services ▪ Aged care

Education ▪ St Mary’s Catholic Primary School ▪ Mansfield Secondary College ▪ Mansfield Primary School ▪ Mansfield Adult Continuing Education ▪ Mansfield Rudolf Steiner School and ▪ Mansfield Community Education Centre Kindergarten

Community ▪ Mansfield library ▪ Performing Arts Centre Sports and recreation ▪ Men’s Shed ▪ Football/ netball club ▪ Mansfield bowling club ▪ Pony Club ▪ Mansfield tennis court ▪ Mansfield swimming pool ▪ Golf Club ▪ Yoga studios and gyms ▪ Basketball courts and stadium

Recent plans In May 2019, Council adopted the Mansfield Station Precinct Activation Project Concept Master Plan. The master plan establishes a vision for the Mansfield Station Precinct and provides Council with a clear, consistent direction in managing the future of the area. Shown in Figure 66, the master plan incorporates a range of community facilities, including:

▪ Adventure playground, and sensory and accessible play area ▪ Taungurung gathering place ▪ Pump Flow track ▪ Events and functions spaces ▪ Open amphitheatre ▪ Arts and cultural centre/ community library/ tourist Visitation centre ▪ Picnic and BBQ area.

FIGURE 66: MANSFIELD STATION PRECINCT ACTIVATION PROJECT CONCEPT MASTER PLAN - PREFERRED OPTION

Source: Mansfield Shire Council (2019), Mansfield Station Precinct Activation Project: Concept Master Plan

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Future planning for community infrastructure Continuing trends of population growth and ageing within the Shire will have implications for service provision in the Shire. Older and younger age groups are the most frequent users of health and education services. Continuing population growth, particularly in these target age groups, will require ongoing consideration of service capacity. A diversifying community (for example in terms of ethnicity, English proficiency, employment status, and occupation) will also be important in influencing participation and utilisation trends (e.g. sports and leisure preferences, demand for long day childcare). There are several established state government policies relevant for planning for community infrastructure in the Shire. These policies relate to planning community infrastructure to consider demographic trends, accessibility of services from transport networks, co-location and future flexibility. At present, Council buildings are at or nearing capacity, both in the size/flexibility of spaces to accommodate enough people, and in their scheduling, which is in high demand. To determine what facilities and services may be needed into the future, Council would prepare a Community Infrastructure Plan. That plan could consider a range of information, including:

▪ Population projections and demographic changes across the Shire ▪ Social infrastructure benchmarks ▪ An inventory and review of Council’s assets (for example, their state of repair, quality/functionality, physical capacity, and capacity for scheduling/programming, the flexibility and adaptability of spaces) ▪ Identification of the network of non-government and not-for-profit partners who deliver programs and activities across the Shire ▪ Best practice examples ▪ Community and stakeholder input. Such a study would examine the best use of Council’s resources, to provide and maintain the existing network of buildings, and to accommodate enough programs in those spaces. It may include an asset review, to determine the condition of buildings and whether they are fit-for-purpose. It would examine the capacity of local community buildings to accommodate the many activities and programs in demand across the Shire, the quality and functionality of community spaces. Best practice examples would be examined. For example, many new spaces are designed to be multi-purpose and collocated with several services, so that small and large groups, and groups with lots of different needs, can all make use of the facility.

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PLANNING POLICY FRAMEWORK OBJECTIVES: Clause 19.03-15 Health facilities

▪ Facilitate the location of health and health-related facilities (including acute health, aged care, disability services and community care facilities) taking into account demographic trends, the existing and future demand requirements and the integration of services into communities.

▪ Plan public and private developments together, where possible, including some degree of flexibility in use.

▪ Locate hospitals and other large health facilities in designated health precincts and areas highly accessible to public and private transport. Provide adequate car parking for staff and visitors of health facilities. Clause 19.02-25 Education facilities

▪ Consider demographic trends, existing and future demand requirements and the integration of facilities into communities in planning for the location of education and early childhood facilities.

▪ Locate childcare, kindergarten and primary school facilities to maximise access by public transport and safe walking and cycling routes. Ensure childcare, kindergarten and primary school facilities provide safe vehicular drop-off zones.

▪ Ensure streets and accessways adjoining education and early childhood facilities are designed to encourage safe bicycle and pedestrian access. Develop libraries as community based learning centres Clause 19.02 Social and cultural infrastructure

▪ Encourage the location of social and cultural infrastructure in activity centres. Ensure social infrastructure is designed to be accessible.

▪ Plan and design community places and buildings so they can adapt as the population changes and different patterns of work and social life emerge.

▪ Support innovative ways to maintain equitable service delivery to settlements that have limited or no capacity for further growth, or that experience population decline. Identify and protect land for cemeteries and crematoria. Clause 19.02-85 Emergency services

▪ Ensure police, fire, ambulance and other emergency services are provided for in or near activity centres.

▪ Locate emergency services together in newly developing areas.

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11.2 Open space The existing open space network of Mansfield includes national and state parks, open space within the Lake Eildon recreation area, the Great Victorian Rail Trail, and the parks, reserves, and public realm within each of the Shire’s towns and settlements. Mansfield township incorporates several significant open space assets, notably the Fords Creek floodplain, Showgrounds Complex and the Botanic Park, as well as two football ovals. Healthy Parks Healthy People is a global initiative that recognises the substantial health and wellbeing benefits that are associated with spending time in parks and nature. The aim is to unlock the ‘power of nature and parks for their preventative and restorative health and wellbeing benefits while conserving biodiversity’.64 In addition to health and wellbeing benefits, there are a number of roles that open space can play in the local community, including environment and biodiversity, economics and tourism, and cultural heritage and character. The main benefits of open space that will be considered as part of the Strategy include:

▪ Social connectedness: Open space can enhance social connectedness within a community as a place to meet with others in a public setting, for events and festivals to take place and as a place to interact.

▪ Learning opportunities: A network of open space encourages social inclusion and provides opportunities for play.

▪ Mental health and wellbeing: Various mental health benefits of access to public open space and parks have been identified including reduced depression and reduced stress levels65, improving concentration and improving productivity.

▪ Physical health and wellbeing: Open space provides opportunities to participate in organised and informal sport and physical activity and connect with nature. Research has shown that users of open space are three times more likely to meet suggested physical activity levels which in turn leads to a reduced risk of disease.

▪ Mitigating the ‘urban heat’ effect: Vegetated open spaces are areas in which heat can release overnight and cool the city during periods of high temperatures. Open spaces with irrigated areas and water supplies have a cooling effect on cities and retain moisture in permeable surfaces of open space. Vegetation in open space contributes to urban heat mitigation through delivering shade. Together these processes help mitigate and adapt to climate change.

▪ Biodiversity: Open spaces, including parks, reserves and corridors enable the maintenance of populations of species, and provide habitats for fauna including birds. Open spaces can aid in the protection of remnant indigenous or significant flora.

▪ Improved air and water quality: Vegetated open spaces reduce air pollution and sequester atmospheric carbon. Green open space can also assist in flood mitigation through attenuation and retention of storm water66 and application of Water Sensitive Urban Design Principles.

▪ Economics and tourism: Access to high-quality open spaces increases the economic potential of a region in terms of tourism, leisure, and cultural activities.

▪ Cultural heritage and character: Open space is an important way to recognise Aboriginal and Torres Strait Islander cultural heritage values as well as local character and identity.

▪ Events and arts: Public open spaces present opportunities for recreational and cultural events and programs. They can deliver locations for permanent or temporary art installations or facilitate performances. Recognising these benefits, and the extent to which continuing growth and urban development within the Shire is likely to have implications for demand for open space into the future, Council has sought to commission the preparation of an Open Space Strategy, which will be prepared over 2020-2021.

64 Parks Victoria (0220), Health Parks Healthy People. Accessed: https://www.parks.vic.gov.au/healthy-parks-healthy-people 65 Healthy Spaces & Places 2009, Design Principle – Parks and Open Space. 66 Ives,C, Oke, C, Cooke, B, Gordon, A and Bekessy, S 2014Planning for green open space in urbanizing landscapes

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The purpose of the Open Space Strategy will be to:

▪ Provide an overview of existing open space resources and future needs ▪ Provide a basis for decision making about future open space provision and development ▪ Identify areas of under-provision of open space and articulate strategies for how land could be acquired or disposed of for the purpose of open space ▪ Facilitate a coordinated approach to open space planning ▪ Articulate community and local government aspirations in relation to open space provision and development. The findings and strategic directions of this work will be incorporated into Mansfield 2040.

FIGURE 67: MANSFIELD TOWNSHIP OPEN SPACE AND RECREATION INFRASTRUCTURE

Source: Mansfield Shire Council (2020) and DataVic Features of Interest (2020).

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FIGURE 68: BONNIE DOON (LEFT) AND JAMIESON (RIGHT) OPEN SPACE AND RECREATION INFRASTRUCTURE

Source: Mansfield Shire Council (2020) and DataVic Features of Interest (2020).

11.3 Waste, water, telecommunications and energy infrastructure

Waste This section contains relevant content from the recently adopted Mansfield Waste Management Strategy 2020- 2025 Population growth in Mansfield and the surrounding region is expected to increase total waste outputs by an estimated 89,000 tonnes (36 percent) by 2042. Due to its location, and natural assets such as mountains and rivers, our Shire also has a high number of seasonal visitors, which brings another set of challenges for waste management. Council has recently expressed commitment to pursuing avenues for safe, cost effective and environmentally responsible ways of dealing with waste and improving waste services offered to the wider community, with a focus on the principles of:

▪ Waste hierarchy, which prioritises approaches to waste management that seek avoidance of the production of waste over recycling and disposal. This concept is embedded within the Victorian Environmental Protection Act which has played a significant role in encouraging industries to recover resources from their waste products.

▪ Circular economy, which seeks to keep products and materials in use for as long as possible and in so doing, reduce environmental impacts and promote economic growth, through good product design and use of natural resources. Waste management facilities and landfills in the Shire include:

Mansfield Waste and Resource Recovery Centre: Mansfield RRC accepts a range of materials from businesses and the community including general waste loads, recyclables, commercial waste, green waste, scrap metal, e-waste and mattresses. In July 2019, the Council assumed management of the Mansfield Waste and Resource Recovery Centre (Mansfield RRC), which was previously managed by an external contractor. This provides opportunities for Council to reconsider how it manage resources to reduce waste in the Shire and contribute to the Victorian State

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Government’s targets for the circular economy in the recently released Recycling Victoria – A New Economy strategy. Given the expected population growth and the restrictions for sorting at the Mansfield RRC, Council intend to develop a Master Plan for the current site. The Shire’s recently adopted Waste Management Strategy stipulates that the Master Plan should also consider provision of processing of food and other organics.

Woods Point Transfer Station: Woods Point Transfer Station predominantly services local residents and businesses that are located outside the kerbside collection service area. There is a risk that expanding towns could encroach on solid waste management and resource recovery facilities and associated buffers, resulting in conflicts between these land uses and incompatible neighbouring land uses such as residential development. To manage these potential conflicts, waste management facilities must be considered when planning for growth, including providing and maintaining buffers around these facilities. In addition to these facilities, the Shire has two closed landfills:

▪ Mansfield Landfill - Permanently closed in 2008 and rehabilitation at the site has commenced ▪ Paps Tip – Permanently closed in 1990 and rehabilitation has not commenced. Both landfill sites are currently managed according to Environmental Protection Authority requirements.

Water Water is central to supporting a healthy environment, prosperous economy and healthy thriving communities now and into the future. However, the Shire is facing challenges of climate change, population growth and changing economic conditions which will increasingly place pressure on the water resources. The key agencies involved in planning and managing water related issues in the town include the Mansfield Shire, Goulburn Valley Water (GVW) and the Goulburn Broken Catchment Management Authority (GBCMA).

Water resources Mansfield receives its drinking water from the Delatite River. Water is pumped from this river at Boorolite (approximately 1km upstream of the Hearns Road waterway crossing), to the Ritchie Reservoir (located on Delatite Lane in Delatite), before being treated at the water treatment plant at Reservoir No. 3 located on Monkey Gully Road in Mansfield. Water from this reservoir is then supplied via gravity to the Mansfield township. The potable water services to Mansfield will be upgraded in the near future to cater for the future urban growth and climate variability. However, reducing reliance on the potable water system through greater use of alternative water is a key consideration. in the near future to cater for the future urban growth and climate variability. However, reducing reliance on the potable water system through greater use of alternative water is a key consideration.

Wastewater For Mansfield, wastewater management is a combination of reticulated sewerage to about 80 percent of properties, with the remainder on domestic septic systems. The sewerage network is adequate, but it is growing incrementally to meet these new growth demands. It is important to understand the likely distribution and timing of growth to ensure water infrastructure keeps pace with demand. Consideration should be given to installing such systems in locations where there is demand for growth, but the lack of such infrastructure may be limiting development options. Reticulated water and sewerage systems do not only support growth in towns, but can also deliver environmental benefits, such as within declared water supply catchments A critical water cycle system issue is that Mansfield’s wastewater treatment plant located on Ford Creek is now under capacity. This plant periodically discharges Class C water into Fords Creek. Continued growth and climate variability could exacerbate such discharges in the future.

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Flooding and drainage Major drainage infrastructure is the network of drains and pipes that are designed to handle water arising from storm events that exceed 20 percent Annual Exceedance Probability (AEP). This means greater than a one-in-five- year storm event. Most stormwater systems are designed to cope with flow events of less than this magnitude, hence major drainage tends to refer to infrastructure that is required to convey very large surface flows safely through urban landscapes. Mansfield is situated on the floodplain of Ford Creek, a tributary of the nearby Eildon Reservoir. Its topography is such that the town is at the base of the catchment and is relatively flat, with the township layout bisecting the natural drainage lines. Given its location at the base of the catchment, storm events can rapidly contribute significant water to this urban drainage network, resulting in flows that exceed the capacity of the major drainage system and cause localised flooding. This results in damage to property and costs to the community more broadly in terms of response and remediation costs. Flood mapping has been undertaken for Ford Creek and its tributaries.

11.4 Telecommunications, electricity, and gas

Telecommunications Information and telecommunications are critical for regional business competitiveness. In an increasingly “online” world, they are also vital to supporting children’s education, providing quality healthcare and community activities. But broadband and mobile coverage is variable across regions, restricting business productivity and the ability of communities to fully participate. These limitations also affect how easily people can connect with one another and put them at risk during emergencies. Since 2014, the Federal Government has committed $380 million to the Mobile Black Spot Program (the Program) to invest in telecommunications infrastructure to improve mobile coverage across Australia. The implementation of telecommunications base stations was funded for several locations across the Shire of Mansfield in the first round of funding. These included:

▪ Ancona - complete ▪ Woods Point - complete ▪ Howqua Inlet - complete ▪ Sawmill Settlement - complete ▪ Tolmie - complete ▪ Gough’s Bay – complete. A priority of the Ovens Murray Regional Partnership is the continuing elimination mobile black spots in key locations across the region. The National Broadband Network (NBN) has been rolled out in many locations across the Shire. However, there are some areas that have not yet been connected, include several residential areas in Mansfield and Bonnie Doon, and several outlying towns and settlements. Reliable telecommunication services are vital during emergency events. This is especially important in small, isolated communities exposed to natural hazards such as bushfire and flood.

Energy Ausnet is the registered provider for electricity in Mansfield Shire, and across most of eastern Victoria. Extended power outages are not uncommon in the Shire. A recent outage, which affected the Mansfield region from Saturday 1 February to Sunday 2 February, (22 Hours duration for most areas). Climate change is likely to increasingly impact electricity supply and reliability across the Shire due to the increasing frequency of severe weather events (storms, bushfires, and flooding) and rising average temperatures. For example, the recent bushfires caused extensive damage to AusNet infrastructure. In total 1,000 km of

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powerlines were affected with 7,000 customers cut off supply because of the damage across the servicing network. In an emergency situation community safety could be severely compromised by this lack of communications. Additional factors affecting future energy demands in Mansfield Shire include:

▪ Rising electricity costs ▪ The high price of bottled liquefied petroleum gas and the limited coverage of the reticulated gas network ▪ Long-distance commuting ▪ The needs of the region’s larger, more energy intensive industries. The Hume Regional Growth Plan includes a commitment to “developing alternative energy sources such as solar, wind, geothermal, bioenergy and biofuels will contribute to securing a sustainable energy future for the region.” The plan notes that opportunities exist in the region for sustainable electricity generation in close proximity to existing electricity distribution infrastructure. The Ovens Murray Regional Partnership seconds this aim, supporting development of renewable energy infrastructure across the region with stated priorities including:

▪ Developing and implementing the Hume regional energy roadmap to facilitate optimal outcomes for the uptake of renewable energy. ▪ Seeking finalisation and implementation of government policy and planning guidelines for development of solar energy facilities including support for 20 percent community ownership.

Gas Mansfield Shire is not supplied with reticulated natural gas. Access to natural gas will be important in the future and will help to make areas attractive for settlement and investment.

11.5 Fluctuating populations and demand for infrastructure The dynamic nature of seasonal populations makes planning in tourist towns difficult. There are challenges for local government where the local rate base is small, while the service demands of part-time and peak populations are high. Part-time populations can boost local economic activity and carry local enterprises through quieter months. However, many part time residents expect the level of service delivery of more densely populated suburbs from which they originate (predominantly far more dense suburban locations in metropolitan Melbourne and other regional centres) and question the cost of rates in comparison with the services provided in the area. For a rural area with large area and small populations this level of service is difficult to provide.

Land use planning is not well suited to managing the seasonal population influx which causes crowding and congestion. Determination of a single population capacity is impossible in areas where seasonal population impacts occur.

Seasonal population increases during peak periods often results in pressure on existing infrastructure. This can provide a source of frustration to the local community and visitors to the area. A balance between continually upgrading facilities for a relatively short peak season and promoting the availability of alternative sites needs to be achieved.

Planning for seasonal population impacts in tourist towns requires innovative non land use planning solutions such as people management strategies due to the significant difference between population numbers in peak and non-peak periods in Mansfield’s towns and settlement.

In relation to infrastructure, key findings from the 2007 non-resident ratepayer survey found that:

▪ The lack of a telecommunications structure (25%) and of services (20%) are also potential obstacles to many non-resident ratepayers moving to the Shire permanently.

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▪ When asked which of four facilities in Mansfield Shire they have used, one in eight (13 percent) have used the swimming pool, 28 percent have used other sporting facilities in the area, and some 8 percent have been to the Performing Arts Centre and 11 percent have used the library.

▪ Among users of Council services, the best ratings are clearly for the appearance of public areas (56 percent deem ‘very good’) and tourism and economic development (48 percent ‘very good’). However, three areas are each rated ‘very poor’ by around one in seven users - local roads and footpaths, waste management and Town planning policy and approvals (14 percent each).

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11.6 Challenges and opportunities

Challenges ▪ Ensuring efficient infrastructure provision, given multiple potential development fronts within existing zoned urban areas.

▪ Ensuring ongoing water supply and security and reducing overreliance on a single source of drinking water, particularly within the context of ongoing population growth and climate change.

▪ Parts of the Mansfield township are not sewered (approximately 20 percent) but they pose a small environmental and community risk, given the lack of active management

▪ Ensuring development does not encroach on key water, waste and energy facilities within the Shire through maintenance of appropriate buffers.

▪ Ensuring reliable energy supply and telecommunications across the Shire.

▪ Planning for infrastructure, appropriately considering seasonal population fluctuations.

Opportunities ▪ Potential for new development to contribute to the cost of community and development infrastructure via explicit shared infrastructure funding plans linked to anticipated development stages.

▪ Fords Creek could play a much greater role for residents and tourists alike as a major connecting open space link and environmental asset.

▪ GVM are planning for an upgrade to the existing potable water supply, given the forecast population growth in the township and climate change predictions.

▪ Future growth areas should consider the conveyance of major drainage flows at a sub-catchment planning scale and consider use of alternative water sources.

▪ Increasing the extent of recycled water used for fit-for purpose use. The Mansfield Golf Course currently uses recycled water. Other key public open spaces could be irrigated with fit for purpose water, rather than potable water. This would help alleviate overall pressure on the potable network.

▪ Explore opportunities for renewable energy generation.

▪ Adopting innovative approaches to managing seasonal demands on infrastructure, such as people management strategies.

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HOW CAN MANSFIELD 2040 SUPPORT INFRASTRUCTURE?

Mansfield 2040 can: ▪ Identify gaps in the community and development infrastructure network and nominate preferred locations for provision.

▪ Identify planning pathways for establishing infrastructure funding mechanisms including development contribution plans and special rate schemes.

▪ Suggest project delivery timing and priority for Council investment.

▪ Identify projects requiring advocacy to and funding from State and/ or federal government.

▪ Support the co-location and accessibility of community services and facilities through land use zoning.

▪ Identify important community infrastructure assets and ensure their protection through recognition in local planning policy and relevant controls.

▪ Suggest grant and funding mechanisms to enable Council to raise funds for infrastructure provision, including fees that could be collected as a development contribution, to enable funds to be raised for infrastructure as development incrementally occurs across townships.

Mansfield 2040 cannot: ▪ Commit Council budget to infrastructure projects.

▪ Commit the State government to community, road or other infrastructure upgrades.

▪ The project will not involve a detailed audit of Council assets or infrastructure requirements. Technical and engineering work to determine infrastructure capacity and requisite upgrades would still be needed.

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12. IMPLICATIONS FOR MANSFIELD 2040

This section summarises the key challenges and opportunities identified throughout this background review. It highlights emerging findings that will form the basis of possible directions in Mansfield 2040, in the next phase of the projects. The implications in this chapter will be refined with input from different council departments, and from the community during the engagement phases of the project in 2021.

Emerging narrative and implications for the Mansfield Planning Strategy This background review has revealed several challenges and opportunities. These will inform possible directions in Mansfield 2040, to be developed in the next phase of the project.

While the population in Mansfield Shire is relatively small, it is dispersed across a large area and several settlements The Shire’s economy is principally based on primary production, the regional service role of the Mansfield township and tourism. While the population is small, it is growing, underpinned by its proximity to Melbourne and its attractive lifestyle offering, the population of the Shire has risen from approximately 6,600 in 2006 to 8,400 in 2016 and is expected to further increase to almost 11,000 by 2036. While the Mansfield township contains about 35 per cent of the Shire’s population, due to its popularity as a lifestyle destination, there are several small settlements scattered throughout the Shire; with some in remote locations. As in many regional areas, this poses a challenge for Council, to provide accessible community services, and meet infrastructure expectations of community members across these dispersed settlements. Another challenge for Council is to manage exaggerated peak demands for infrastructure during holiday seasons equitably. Expectations and needs vary between the permanent, non-resident, and tourist populations and these need to be balanced when making servicing and infrastructure decisions.

A clear town hierarchy is needed, to direct Council’s limited resources for infrastructure, reticulated services and community buildings equitably As highlighted above, Mansfield’s population is concentrated in and around the Mansfield township, and smaller towns such as Bonnie Doon, Jamieson and Goughs Bay. The remainder of the population is distributed across several small settlements and the rural area. A clear town hierarchy could help Council determine how to best direct resources to meet the service and infrastructure needs of the population equitably. However, this may also establish a need for improved transport, or possibly community transport options, from smaller towns and settlements connecting people to services and facilities they need. The need for a recognised town hub that could support visiting services would remain an important aspect of Mansfield’s towns – for example, within an existing community hall. Such spaces could accommodate satellite or drop-in services. A centres or towns hierarchy and its implications for the delivery of social and community facilities, including their scale and feasibility, with overlapping considerations about access, and irregular servicing for community hubs, would need to be further explored through a Community Infrastructure Planning process for example.

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growth fronts accommodating modest growth around the Mansfield town centre, Council faces a challenge to provide sufficient footpath networks, traffic management works, community services, and reticulated infrastructure to meet the community’s needs in and around the town. In the past, there hasn’t been a clear direction for where housing growth should be targeted or how development should be appropriately staged to allow for coordinated infrastructure provision.

More than a third of recent planning permits for dwelling development have been for the construction of houses in the Farming Zone. Rural living is desirable for a range of reasons and a significant draw for new homeowners to the Shire – for example, the potential for hobby farming, a sense of remoteness, the attractive landscape setting. However, dwelling development in the Farming Zone, which is not directly associated with the agricultural use of the land, has the potential to compromise the continued use of land for productive agriculture. This trend can also lead to land price increases, fragmentation, and land conversion. Residential use of farming lots can exacerbate interface issues between non-farming lots and agricultural activities. Expectations of new migrants in an agricultural landscape of a benign rural environment also create land use and associated amenity conflicts with surrounding agricultural uses due to the use of chemical sprays, noise and smells form livestock, for example. Likewise, leakage of residential development from designated rural living areas reduces the viability of development in these areas and further stretches Council’s infrastructure and servicing resources. Median weekly rents have been increasing rapidly in the Shire, resulting in a growing need for social and affordable housing Rapidly rising rents are contributing to a growing number of renter households and families in the Shire experiencing rental stress. The prevalence of rental stress is likely to increase as the Shire’s population grows. If the State Government continues to adopt a relatively passive approach to investment in social housing, and the number of social housing dwellings in Mansfield remains stable, it can be expected that this gap in provision will increase to 378 houses by 2036. Addressing this shortfall in demand for social and affordable housing would require 35 per cent of future dwellings to be social and affordable rental dwellings.67

67 It is noted that high house prices and rising monthly mortgage repayments are likely contributing to an increasing number of households experiencing mortgage stress. However, addressing mortgage stress requires policy solutions that are typically outside of the control of local government. As a result, this report is primarily focused on rental stress in Mansfield LGA.

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The supply of urban employment (industrial and commercial) land across the Shire is poorly defined, at capacity, or constrained by its location, creating challenges for the local economy to capture new sectors According to the Commercial and Industrial Lands Strategy (CILS), which is currently being prepared, the industrial land supply across Mansfield Shire has been exhausted for some time. In Mansfield township, industrial precincts which were once on the fringe of town, are now located adjacent to residential growth areas, introducing interface issues where industrial and sensitive residential areas abut one another. The current configuration does not allow sufficient buffers, meaning the potential for flexible industrial activities is limited. Around Mansfield township, the land zoned for commercial uses extends beyond the urban core, containing several community and residential buildings. This poses challenges for agglomeration, diluting activity in Mansfield’s urban centre. The CILS will involve more investigation into how the location and configuration of commercial and industrial land will be managed into the future. This would include considering how precincts can be integrated with the town to ensure urban services are accessible while creating opportunities to capture interregional export opportunities. It would also address how to harmonise and create a hierarchy of commercial and industrial activities, so they may be located appropriately to reach their optimal role in the local economy.

Environmental hazards, land clearing and climate change have the potential to undermine Mansfield’s significant biodiversity values, leading to environmental degradation Across Mansfield’s extensive areas of public land, major threats to biodiversity include invasive plant and animal species (including deer, rabbits and Blackberry), erosion, bushfire, and polluted runoff from private land. On private land, extensive land clearing, loss of trees and vegetation cover also contributes to habitat loss, erosion, and land slip, as well as exacerbating heat effects. Mansfield 2040 will support the findings from the Mansfield Environmental Strategy to ensure environmental landscapes are extended and protected where possible.

Environmental impacts also have the potential to undermine Mansfield’s tourism industry, leading to greater economic vulnerability Mansfield Shire is a rural area renowned as a holiday destination, and gateway to the Alpine National Park. Bushfires severely impacted the tourism sector over summer 2019-20. Firefighter deployment elsewhere in the state forced the closure of popular campgrounds across the Shire and prevented the usually large summer tourist influx. Climate change is also threatening the length of the snow season, a major attractor for winter tourists. The impacts of climate change also affect the viability of different agricultural activities.

Mansfield 2040 will provide important directions about how to manage these land use and development challenges into the future This background review has revealed several implications to be examined further, and which will inform the preparation of Mansfield 2040. Regarding funding and resourcing, multiple challenges need to be addressed, including how to service rural populations in a rate-capped environment and balance the needs of resident and absentee landowners equitably. Across the Shire there are scattered settlements, multiple growth fronts which create servicing challenges, and many dimensions to the growing and ageing population. This creates significant challenges for funding and resource management, and the project will further consider the need for different funding models that could address such challenges – for example, development contributions plans, or special rates schemes. Mansfield 2040 will further consider the implications from this emerging narrative, to establish recommendations and directions for how to manage land use and development challenges in the future.

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12.2 Next steps The next phase of this project is to talk to the community about Mansfield Shire and its future. The aims of community consultation are to explore and expand upon the challenges and opportunities identified in this background work, and to test emerging implications or findings that will shape the Planning Strategy. Council has recently launched a project website, and further information will be shared online: https://haveyoursay.mansfield.vic.gov.au/mansfield-planning-strategy.

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APPENDIX A: MANSFIELD PLANNING SCHEME

Overview Planning schemes are arranged into several sections, containing state policies (set by planning strategies such as Plan Melbourne or the Hume Regional Growth Plan) that set a high-level direction for land use, development, and environmental management. The Planning Policy Framework (PPF) set out in all planning schemes contains several themes, around which this report and the Mansfield Planning Scheme are structured:

▪ Settlement ▪ Environment and landscape values ▪ Environmental risks and amenity ▪ Natural resource management ▪ Built environment and heritage ▪ Housing ▪ Economic development ▪ Transport ▪ Infrastructure. Based on analysis in this project, Mansfield 2040 may make some recommendations to amend the Mansfield Planning Scheme. Any findings and recommendations from the project would require further consultation with the community, and there would be several opportunities for public discussion, beyond the engagement opportunities this project will contain. To amend a planning scheme, Council must also have authorisation from the State Government’s planning department.68

Local policies The Mansfield Planning Scheme contains a Local Planning Policy Framework (LPPF) which is structured around the topics from the PPF, listed above. These are grouped within Clause 21 Municipal Strategic Statement as:

▪ Clause 21.03: Settlement and Housing ▪ Clause 21.04: Heritage and character ▪ Clause 21.05: Environment and Natural Resource Values ▪ Clause 21.06: Environmental risks ▪ Clause 21.07: Economic Development ▪ Clause 21.08 Transport and Infrastructure ▪ Clause 21.09: Mansfield Township ▪ Clause 21.10: Local Areas. Local policies at Clause 21 set out strategic directions for different planning areas in the Shire, by highlighting challenges and issues that need to be addressed in the Shire, related to the themes above. Local policies explain how issues will be managed when dealing with land use and development applications, or identify where further strategic planning and technical work is needed. Many challenges are examined in the relevant sections of the main report; a summary is included below.

68 For more information about the planning system and amending planning schemes, visit the Department of Environment, Land, Water and Planning (DELWP) website: https://www.planning.vic.gov.au/.

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The Planning Scheme also contains four key policy areas under Clause 22, these are; 22.01 Gaming Policy, 22.02 Design and Siting Guidelines in Rural Areas and Upon Significant Ridgelines, 22.03 Floodplain Management as well as 22.04 Local Planning Policies (Managing Water Quality in Special Water Supply Catchments). Key challenges identified within the Municipal Strategic Statement include:

▪ Differing needs of each town with limited resources

▪ Infrastructure disparities and the pressure of increased development outside of existing townships/infrastructure reach

▪ Balancing infill and character of Township

▪ Climate change and variability presents both challenges and opportunities as intense weather events and warmer climates effect agriculture output and tourism opportunities in a variety of ways.

▪ Bushfire Management Overlay constraints

▪ Mansfield Township holds dominance of industrial zoned land

▪ Diversity of housing required, particularly aged care and medium density dwellings

▪ Heavy vehicle movements limited by road network and surfaces

▪ Merrijig opportunity in proximity to Mansfield (has reticulated sewage)

▪ Jamieson & Maindample will have no additional large parcels of land available for new development and infill is limited by wastewater constraints

▪ Woods Point bushfire risk and water limitations

Zones Zones are the primary tool for guiding the fair and orderly use and development of land. A zone sets expectations about what land use and development activity is or may be acceptable in the location to which it applies. Each zone broadly deals with a particular predominant land use theme, such as residential, commercial, industrial or public land uses. Zones are applied spatially and all land must be included in a zone, except Commonwealth land. The zone selected for any land is determined by the historic land use and the planning strategies set out in the planning scheme. Each zone contains purposes that describe the planning outcome sought by the zone. These purposes are achieved through the application of the controls on use and development in the zone. The use of land is controlled by the ‘Table of uses’ in the zone. This table places particular land uses in one of three categories:

▪ Section 1 – Permit not required ▪ Section 2 – Permit required ▪ Section 3 – Prohibited The table may include a condition next to a land use that must be met. If the condition is not met, a more restrictive land use category will apply to the use. The zone also controls development by requiring a planning permit for specified types of development. Some zones seek to promote a specific outcome by exempting a preferred form of development from the need for a permit. Some zones may include mandatory requirements, such as a maximum building height.

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ZONING IN THE MANSFIELD LGA

Source: SGS Economics and Planning, based on the Mansfield Planning Scheme, 2020.

SUMMARY OF PLANNING ZONES IN MANSFIELD SHIRE

Planning scheme Purpose Location/ extent of application control 32.03 Low Density To provide for low-density residential development Low Density Residential Zoned land is located in Residential - LDRZ on lots which, in the absence of reticulated pockets of the Mansfield Township, Goughs Bay sewerage, can treat and retain all wastewater and Jamieson 32.03 Schedule to Low Outlines permitted subdivision sizes for the Kareen Kareen Hills Estate within Mansfield Township Density Residential Hills residential Estate 32.04 Mixed Use Zone - To provide for a range of residential, commercial, Parcels of Mixed Use zoned land are found within MUZ industrial and other uses which complement the the Mansfield Township, Barjarg and Jamieson mixed-use function of the locality 32.04 Schedule to Outlines standards and requirements for Mixed As per Mixed Use Zone Mixed Use Zone Use Areas including site coverage of 70%, minimum street setback of 10 metres, front fence height of 1.2 metres and side setbacks of 3 metres 32.05 Township Zone - To provide for residential development and a The Township Zone is applied in Maindample, TZ range of community serving uses in small towns. Merton, Merrijig and Woods Point 32.05 Schedule to Outlines standards for Township Zoned land under As per Township Zone Township Zone Clause 54 and 55. There are currently no specified requirements under the Schedule. 32.08 General To provide housing diversity that respects the The General Residential Zone is applied within the Residential Zone - GRZ neighbourhood character of an area, particularly in Mansfield Township, Bonnie Doon, Goughs Bay,

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Planning scheme Purpose Location/ extent of application control locations with good access to services and Howqua Inlet, Macs Cove, Jamieson, to the east of transport as well as supporting specified Merrijig Township community serving uses. 32.08 Schedule to Outlines standards for General Residential Zoned As per General Residential Zone General Residential land under Clause 54 and 55. There are currently no specified requirements under the Schedule. 33.01 Industrial 1 Zone To provide for manufacturing industry, the storage Industrial zoned land is located within Mansfield – IN1Z and distribution of goods and associated uses in a Township, key clusters include Mansfield-Whitfield manner which does not affect the safety and Road towards the town, along Stock Route and amenity of local communities. Dead Horse Lane. 34.01 Commercial 1 Commercial Zone 1 seeks to create vibrant mixed- Commercial Zone 1 is applied along Maroondah Zone – C1Z use commercial centres for retail, office, business, Highway in Mansfield Township as well as within entertainment and community uses, with the towns of Bonnie Doon, Goughs Bay, Macs Cove residential uses at complementary densities. and Jamieson 34.01 Schedule to Requires that 8 Timothy Lane Mansfield does not Mansfield Holiday Park - 8 Timothy Lane Commercial 1 Zone exceed 1200 sqm leasable floorspace 34.02 Commercial 2 Commercial Zone 2 encourages offices, Commercial Zone 2 is currently applied along Zone – C2Z appropriate manufacturing and industries, bulky Mount Buller Road which lies between Greenvale goods and other retailing, with associated business Lane and Reardon Lane. and commercial services. 35.03 Rural Living Zone To provide for agricultural land uses which do not Rural Living Zone is applied just outside the - RLZ adversely affect the amenity of surrounding Mansfield Township boundary, as well as around land uses as well as provide residential options Bonnie Doon, Goughs Bay, Jamieson, Merton and within a rural environment. Tolmie. Different Schedules and Development Plan Overlays apply to sections of Rural Living Zone across the Mansfield Shire. 35.03 Schedule 1 to To set requirements such as a minimum Applies land surrounding Mansfield Township, Rural Living Zone subdivision of 2 hectares with an average lot size Bonnie Doon, Goughs Bay, Jamieson and Tolmie of 4 hectares, a minimum area of 4 hectares for which no permit is required to use land for a dwelling and more 35.03 Schedule 2 to To set requirements such as a minimum Applies land around Merton and Tolmie Rural Living Zone subdivision of 8 hectares, a minimum area of 8 hectares for which no permit is required to use land for a dwelling and more 35.06 Rural To protect and enhance the natural environment The Rural Conservation Zone is applied is parcels Conservation Zone - in a variety of ways as well as providing agriculture dispersed across the Shire including near Ancona, RCZ use options which are consistent with the Howqua Inlet, Jamieson, Tolmie and Woods Point conservation of the environmental and landscape values of the area. Landscape values include conserving and enhancing open rural and scenic non-urban landscapes. 35.06 Schedule to Rural To protect areas with sensitive environments As per Rural Conservation Zone Conservation Zone particularly surrounding the Goulburn and Big Rivers. It is noted that special consideration is needed to protect water quality, erosion prone soils and visual amenity in these areas 35.07 Farming Zone - To ensure that non-agricultural uses, including Farming Zone is present across Mansfield Shire FZ dwellings, do not adversely affect the use of land for agriculture. 35.07 Schedule to The Schedule applies to all Farming Zone land to As per Farming Zone Farming Zone set requirements and Standards such as a minimum subdivision size of 40 hectares, a

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Planning scheme Purpose Location/ extent of application control maximum floor area for which no permit is required to alter or extend an existing dwelling being 50% increase in gross floor area and more 35.08 Rural Activity To provide for other uses and development, in The RAZ is applied to the Timbertop Geelong Zone - RAZ appropriate locations, which are compatible with Grammar School Campus to the east of Merrijig agriculture and the environmental and landscape characteristics of the area. 35.08 Schedule to Rural To enable the use and development of land As per RAZ Activity Zone associated with the Geelong Grammar School Timbertop Campus to be considered in an integrated manner considering agriculture and the environmental and landscape characteristics of the area. 36.01 Public Use Zone - To provide for public utility and community Applies to various properties throughout Mansfield PUZ services and facilities. Across PUZ1 Service & including schools, the hospital, the water Utility, PUZ2 Education, PUZ3 Health and treatment plant, the waste water treatment plant Community, PUZ4 Transport, PUZ5 and more including within Bonnie Doon, Goughs Cemetery/Crematorium, PUZ6 Local Government Bay, Howqua Inlet, Merrijig and Tolmie and PUZ7 Other public use. 36.02 Public Park and To recognise areas for public recreation and open Within townships of Mansfield, Bonnie Doon, Recreation Zone - PPRZ spaces, conserve areas of significance and/or Maindample, Merton, Woods Point, Jamieson, provide for commercial uses where appropriate. Goughs Bay, as well as surrounding waterways such as Lake Eildon and Lake Nillahcootie 36.03 Public To protect and conserve the natural environment Large portions of Mansfield Shire are within this Conservation and and natural processes for their historic, scientific, zone, they are largely alpine areas as well as Resource Zone - PCRZ landscape, habitat or cultural values. As well as to parcels within proximity to Mansfield Township provide facilities which assist in public education and waterways. Management of this land is often and interpretation of the natural environment with through a public land manager or Parks Victoria. minimal degradation of the natural environment or natural processes and provide for appropriate resource-based uses 36.04 Road Zone – Marks significant existing roads into Category 1 or Maroondah Hwy, Midland Hwy, Mt Buller Rd, RDZ1 and RDZ2 2 as well as land which has been acquired for a Mansfield-Whitfield Rd, Merton-Euroa Rd, significant proposed road Mansfield-Woods Point Road, Jamieson-Licola Road, Eildon-Jamieson Road, 37.01 Special Use Zone To recognise or provide for the use and Mountain Bay near Goughs Bay - SUZ development of land for specific purposes as identified in a schedule to this zone 37.01 Schedule to Make provision for a range of tourist and As per Special Use Zone Special Use Zone residential accommodation, recreation and water- based facilities and commercial activities. Ensure that the scale, intensity, bulk and character of any development complements the natural systems and landscape value of the areas in the zone. 37.03 Urban Floodway To identify waterways, major floodways, drainage Mansfield Township Zone - UFZ depressions and high hazard areas within urban areas which have the greatest risk and frequency of being affected by flooding

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Overlays Overlays control a broad range of development matters such as the protection of vegetation or heritage values, the design of built form or mitigating flood risk. The application of an overlay may reflect a policy objective in the scheme or a condition of the land. While a parcel of land will always be included in a zone, it will only be affected by an overlay where a specific development outcome is sought for that land. Land can be subject to more than one overlay if multiple issues apply to the land. Each overlay contains purposes that specify the planning outcome sought by the overlay. These purposes are achieved through the application of the controls in the overlay. For example, to develop land in an overlay that identifies flood prone areas, a planning permit application may require special information about the expected height and incidence of flood, to demonstrate that life and property will not be unreasonably at risk as a result of developing in that location. Several overlays apply across Mansfield Shire, as illustrated on the maps and in the table below.

OVERLAYS IN THE MANSFIELD LGA (EXCLUDING BUSHFIRE MANAGEMENT OVERLAY)

Source: SGS Economics and Planning, based on the Mansfield Planning Scheme, 2020.

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MANSFIELD BUSHFIRE MANAGEMENT OVERLAY

Source: SGS Economics and Planning, based on the Mansfield Planning Scheme, 2020.

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SELECTED OVERLAYS IN THE MANSFIELD TOWNSHIP

Source: SGS Economics and Planning, based on the Mansfield Planning Scheme, 2020.

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SUMMARY OF OVERLAYS IN MANSFIELD SHIRE

Planning scheme Purpose Location/ extent of application control 42.01 Environmental To identify areas where development of land may be affected by A large extent of Mansfield Shire Significance Overlay - environmental constraints and ensure development is compatible ESO with identified environmental values. This clause applies to the catchment for Lake Eildon and aims to protect these areas to ensure it remains attractive to residents and visitors and that land use and development are not detrimental to the quality of water on the catchment. 42.01 Schedule 1 to ESO1 outlines Catchments at high risk of water quality impacts. A large extent of Mansfield Shire Environmental This is to discourage development and works that contribute to Significance Overlay the degradation of water quality and quantity 42.01 Schedule 2 to Catchments at medium risk of water quality impacts A large extent of Mansfield Shire Environmental Significance Overlay 42.02 Vegetation To protect areas of significant vegetation and encourage See Schedule to Vegetation Protection Overlay - regeneration of native vegetation Protection Overlay VPO 42.02 Schedule to To protect vegetation that is of significance for historical, botanical Locations outlined as 3.2 km along Vegetation Protection and environmental reasons or because it is valued by the local Euroa-Merton Rd on W side about Overlay community. 1 km from road, Old Tabletop Township, Tallangalook Rd via Dry Creek Rd, 17 km from Bonnie Doon, Road reserve at cnr Mt Buller Rd and Buttercup Lane Merrijig, Alpine National Park 3 km beyond Lovick’s hut on N side of Bluff Track 42.03 Significant This clause aims to identify and protect the visual values of the East of Mansfield Township Landscape Overlay - state significant landscape on the approaches to the surrounding towards Mt Buller and East of Macs SLO hills as well as the Lower Howqua River Area. In particular, it seeks Cove to protect the short and long distance views of Mount Buller from Mount Buller Road approach roads and public viewpoints. All proposed developments must be of muted tones and constructed in non-reflective materials, to the satisfaction of the responsible authority 42.03 Schedule 1 to Identifies and protects the Alpine Approach Significant Landscape East of Mansfield Township Significant Landscape Area towards Mt Buller Overlay 42.03 Schedule 2 Identifies and protects the Lower Howqua River Area East of Macs Cove Significant Landscape Overlay 43.01 Heritage Overlay This Clause identifies areas have natural or cultural significance, in Selected sites order to preserve and enhance the elements which contribute to the places of heritage significance. This includes Victorian Heritage Registered elements, and ones of local significance 43.01 Schedule to Lists the places featured on the Victorian Heritage Register and Select locations across Mansfield Heritage Overlay places pf local significance Shire 43.02 Design and To identify areas which are affected by specific requirements Development Overlay - relating to the design and built form of new development. DDO 43.02 Schedule to the The DDO Schedule covers the Alpine Approaches and Township A Section at Mansfield Township Design and Gateways to ensure that buildings visual appearance is compatible High St And the Industrial/MUZ Development Overlay with the role of land Area at Mt Buller Rd.

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Planning scheme Purpose Location/ extent of application control 43.04 Development To identify areas which require the form and conditions of future Select areas of GRZ, LDRZ, RLZ, Plan Overlay - DPO use and development to be shown on a development plan before Mansfield Townships High St and a permit can be granted to use or develop the land. Barjarg's Mixed Use Zoned land are covered by DPO and schedules to the DPO 43.04 Schedule 1 to the To ensure that development meets specific requirements before a Select areas of General Residential Development Plan permit is granted within specific areas of General Residential Zone Zone and Mixed Use Zoned land Overlay – DPO1 and Mixed Use Zoned land. This was a part of Amendment C37 in within Mansfield Township 2016. 43.04 Schedule 2 to the To ensure that development meets specific requirements before a Select areas of Mansfield Township Development Plan permit is granted within specific areas of Low Density Residential and Goughs Bay Low Density Overlay – DPO2 Zoned land. This was a part of Amendment C37 in 2016. Residential Zoned Land 43.04 Schedule 3 to the To ensure that development meets specific requirements before a Select areas of Rural Living Zone Development Plan permit is granted within specific areas of Rural Living Zoned land. near Bonnie Doon, Merton, Tolmie Overlay – DPO3 This was a part of amendment C32 in 2015. and Mansfield Township 43.04 Schedule 4 to the To ensure that development meets specific requirements before a South Side of Mansfield High St Development Plan permit is granted within the South Side of High St in Mansfield This Overlay – DPO4 was a part of amendments C32 in 2015 and C1(Part 1) in 2006. 43.04 Schedule 5 to the To ensure that development meets specific requirements before a Barjarg Development Plan permit is granted within specific areas of Barjarg's Mixed Use Overlay – DPO5 Zoned Land. This was a part of amendment C29 in 2014. 44.03 Floodway This Clause identifies waterways and major floodpaths and high Barjarg, Bonnie Doon, Howqua, Overlay - FO hazard areas which have the greatest risk and frequency of being Jamieson, Macs Cove, Merrijig and affected by flooding. It also ensures that development maintains Sawmill Settlement or improves river and wetland health, waterway protection and flood plain health. 44.03 Schedule to Outlines the instances a permit is not required As per Floodway Overlay Floodway Overlay 44.04 Land Subject to This Clause identifies land areas affected by the 1 in 100 year Barjarg, Jamieson, Merton and Inundation Overlay - flood, and ensures that development maintains the free passage Maindample LSIO and temporary storage of floodwaters. 44.04 Schedule to Land Outlines the instances a permit is not required As per Land Subject to Inundation Subject to Inundation Overlay Overlay 44.06 Bushfire This Clause ensures that the development of land prioritises the The BMO covers a significant Management Overlay protection of human life and strengthens community resilience to extent of Mansfield Shire with the bushfire. It ensures that development is only permitted where the exception of Mansfield Township risk to life and property from bushfire can be reduced to an and areas around the Maroondah acceptable level. Highway including Maindample, Bonnie Doon and Merton. It is of note that the Bushfire Prone Area also covers the area but is not reflected within this overlay. 44.06 Schedule 1 to Provides specific requirements to be met Goughs Bay BAL-12.5 areas Bushfire Management Overlay 44.06 Schedule 2 to Provides specific requirements to be met Alpine Ridge, Jamison BAL-29 Areas Bushfire Management Overlay 45.01 Public Acquisition To identify land which is proposed to be acquired by a Minister, Overlay - PAO public authority or municipal council as well as to reserve it for a public purpose and designate the authority.

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Planning scheme Purpose Location/ extent of application control 45.01 Schedule to PAO1 is for the purpose of a raw water storage reservoir and Delatite Lane Public Acquisition associated physical infrastructure. Overlay 45.03 Environmental This Clause ensures that potentially contaminated land is suitable Mansfield and Jamieson Audit Overlay - EAO for a use which could be significantly adversely affected by any contamination. 45.12 Specific Control To apply specific controls designed to achieve a particular land use Mountain Bay Overlay - SCO and development outcome in extraordinary circumstances. 45.12 Schedule to Applies the SCO to Mountain Bay Specific Control Overlay

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CANBERRA HOBART MELBOURNE SYDNEY Level 2, 28-36 Ainslie Place PO Box 123 Level 14, 222 Exhibition St 209/50 Holt St Canberra ACT 2601 Franklin TAS 7113 Melbourne VIC 3000 Surry Hills NSW 2010 +61 2 6257 4525 +61 421 372 940 +61 3 8616 0331 +61 2 8307 0121 [email protected] [email protected] [email protected] [email protected]