WARRNAMBOOL PLANNING SCHEME AMENDMENT C43
PANEL REPORT
MAY 2006 WARRNAMBOOL PLANNING SCHEME AMENDMENT C43
PANEL REPORT
JENNIFER A MOLES, CHAIR
ELIZABETH BENSZ, MEMBER
MAY 2006
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 1 TABLE OF CONTENTS
SUMMARY ...... 2
1. WHAT IS PROPOSED? ...... 6 1.1 WHAT LAND IS AFFECTED? ...... 6 1.2 STRATEGIC NATURE OF THE AMENDMENT...... 6 1.3 DETAILS OF THE AMENDMENT ...... 6 1.4 EXHIBITION OF THE AMENDMENT...... 12 1.5 PLANNING AUTHORITY CONSIDERATION OF SUBMISSIONS...... 12 1.6 APPOINTMENT OF PANEL AND HEARINGS...... 13
2. STRATEGIC CONTEXT ...... 14 2.1 STATE PLANNING POLICY FRAMEWORK (SPPF) ...... 14 2.1.1 The MSS Review...... 15 2.1.2 Other Wcc Strategies and Policies...... 16 2.1.3 Other Agency Reports and Strategies ...... 21 2.1.4 Key Changes to Local Scheme Content ...... 22 2.1.5 Strategic Studies Proceeding Separately ...... 23 2.1.6 Consequential Zoning and Overlay Changes ...... 23 2.1.7 Panel Comment...... 23
3. ISSUES...... 25 3.1 NATURE OF SUBMISSIONS ...... 25 3.2 GROUPS OF ISSUES IDENTIFIED BY THE PANEL ...... 26 3.3 PANEL ASSESSMENT OF THE ISSUES ...... 26 3.3.1 Future Industrial Development att Allansford...... 27 3.3.2 Future Development of Gateway Plaza, Deakin University and the Eastern Entry to the City...... 30 3.3.3 Affordability and Availability of Housing...... 33 3.3.4 The Amount and Location of Rural Residential Land...... 38 3.3.5 Staginga and Leap-Frogging of Particular Residential/Commercial Developments ...... 40 3.3.6 Drafting Issues...... 43 3.3.7 Other Issues ...... 44
4. RECOMMENDATIONS...... 51
APPENDICES
A. THE PANEL PROCESS ...... 55 THE PANEL ...... 55 HEARINGS, DIRECTIONS AND INSPECTIONS ...... 55 SUBMISSIONS...... 56
B. STRATEGIC ASSESSMENT GUIDELINES...... 60
C. COUNCIL RESPONSE TO DETAILED SUBMISSIONS...... 63
D. ANNOTATED MSS BEFORE THE PANEL...... 87
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 2
SUMMARY
The key changes proposed to the Warrnambool Planning Scheme (WPS) Local Planning Policy Framework (LPPF) proposed via Amendment C43 are as follows:
A new re-structured Municipal Strategic Statement (MSS) is proposed at Clause 21 to reflect the recommendations of the Three Year MSS Review and the adopted strategic work. The MSS would provide the broad strategic framework for the local policies and controls.
Clause 21.01 provides a profile of the City of Warrnambool and identifies the four key strategic land use planning themes that need to be addressed in the municipality. These four themes are similar to those in the State Planning Policy Framework (SPPF) – Housing; Environment; Economic Development; and Infrastructure.
Clause 21.02 identifies the key influences on land use planning in Warrnambool.
Clause 21.03 contains the vision from the 2005 Council Plan and a new Strategic Framework Plan for Warrnambool.
Clause 21.04 provides an introduction to the objectives, strategies and implementation provided in the subsequent clauses.
Clause 21.05 describes the Planning Authority’s strategic directions for Housing, including Outline Plans for the North East Corridor, the Coastal/Hopkins River area, Dennington North, North of Merri River, Eastern Activity Precinct and Allansford.
Clause 21.06 describes the strategic directions for the Environment, under the themes of Sustainability, Biodiversity and Native Vegetation, Waterways, Flooding, Coastal Landscape, Steep land, and Heritage.
Clause 21.07 describes the strategic directions for Economic Development, under the themes of Agriculture, Industry, Commerce, Tourism and Gaming.
Clause 21.08 describes the strategic directions for Infrastructure, under the themes of Water, Sewerage & Drainage, Incompatible Land Uses and Community Services.
Clause 21.09 describes the manner in which the Planning Authority will monitor and review the performance of the WPS and its linkages with the Council Plan.
Clause 21.10 lists a number of reference documents that have influenced the strategies contained within the MSS.
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Changes are also proposed to the Clause 22 local policy component of the WPS. A considerable body of local policy has been relocated to the MSS, a small number of policies have been abandoned due to lack of utility or effectiveness and the remaining local policies have been regrouped under headings consistent with the SPPF headings.
The Panel was advised that there is to be a subsequent amendment which will revise zonings and overlays to further give effect to the MSS review. This is to include converting many of the local policy statements into new overlay controls.
Following exhibition of the proposed changes to the Warrnambool Planning Scheme, in response to a request by the Planning Authority, this Panel was appointed to provide advice on the submissions and the amendment. All 37 submissions received by the Planning Authority were referred to the Panel. The Panel conducted a public hearing in Warrnambool during which oral submissions were made by the Planning Authority, various public and private agencies and individuals. Expert evidence was called by the Planning Authority and one submitter. The Panel inspected various parts of the municipality to assist in its consideration of the issues raised.
Following consideration of all matters put before the Panel, a number of conclusions and recommendations are made in this report as set out in summary below.
RECOMMENDATIONS AND CONCLUSIONS
Amendment C43 to the Warrnambool Planning Scheme Planning Scheme should be adopted subject to the following particular recommended changes and actions.
PARTICULAR RECOMMENDATIONS
Allansford
• The Panel recommends that the Planning Authority proceeds urgently with the preparation of a structure plan for the industrial park at Allansford and the adjoining residential areas. The siting of any rail siding and associated acoustic barriers should be considered as a key component of the plan.
• The Panel supports the emphasis in the Expressions of Interest document for preparation of the structure plan upon communication with the residents.
• The Panel believes that this aim would be assisted by the establishment of a project steering committee which should include representatives of the local community.
• Consideration should be given to the appropriate zoning of the land at the fringe of the Allansford township upon which the submitters reside.
• The Panel also recommends that the required amenity buffers between industry and dwellings should be provided within the industrial land itself. If this arrangement requires more land than is has already been purchased, further land may be need to be obtained.
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Eastern Entry
• The Panel recommends that as a matter of urgency work be commenced on an Eastern Entry Structure Plan for the area in the vicinity of the Gateway Plaza Centre with the aim of developing a cohesive activity precinct of an urban design standard commensurate with its location at the main gateway to the City. Issues to be addressed in the study would include access to and within the precinct, urban design issues such as building bulk and design, the creation of attractive public spaces, advertising controls, the future use of the Deakin Campus land, planning for office space and various types of retailing.
• The wording changes to the MSS put forward by Mr Biacsi on behalf of AMP in relation to retailing matters are supported subject to the qualifications expressed in Section 3.3.2.
• The EAPSP mapping errors need to be corrected in discussion between Council and AMP.
• The Panel supports an urgent review of the Retail Strategy to enable retailing floor space figures to be reintroduced in the WPS and the interim wording now proposed for the MSS removed. This project must include consideration of the future use of the Fletcher Jones site.
Affordable housing • The MSS references to the enhanced provision of affordable housing are supported as far as they go. The Panel agrees with the submitters that it would be appropriate to give greater recognition in the MSS to the affordable housing problem in Warrnambool in Clauses 21.01 and 21.02 and to seeking solutions in 21.05.
• It is also recommended that WCC planning department undertake research into other planning techniques to assist in achieving the aim of enhanced provision of affordable housing such as ‘inclusionary zoning’ with a view to introducing them through scheme or other requirements.
Rural residential zoning
• Council should undertake a review of the Rural Living and Low Density Residential Zones throughout the City, their extent and relevance particularly with regard to Bushfield and Woodford areas together with the isolated area of development on Rodgers Road.
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Specific outlying developments and sites
• Mr Condon’s and the St Joseph’s Parish proposals should be reviewed at some point in the future as part of review of the growth potential and timing of development of the Northern Growth Corridor.
• The Panel gives in principle support to both the ‘Motang’ and ‘Astbury’ approaches to development in sensitive environments.
• The status of the Francis Tozer Reserve as a community education resource should be given greater recognition in the MSS as suggested by Ms Adams and the Environment Unit of WCC.
Drafting
• Dr Tait’s submission in as far as it is supported by Council is agreed to by the Panel. Details are set out in Appendix C.
• The Panel also notes the changes to the MSS which have been adopted in response to the now-withdrawn DSE submission.
Environment • The Planning Authority response to the submissions by Ms Duffield, the Western Coastal Board, Regional Innovation and the Carrucans is supported. The details are set out in Appendix C. Other issues • Mr Gleeson’s submission should be referred to the consultants preparing the structure plan for the North East Growth Corridor. • The knackery at Sinclair Street should be referred to in Clause 21.08.01 together with the already included Nestle (Fonterra) site and the sale yards. We suggest that it be renamed ‘Rendering Plant’.
GENERAL CONCLUSIONS
The Panel commends Warrnambool City Council and its consultants on their approach to the preparation of this amendment and the comprehensive and structured manner in which relevant material was put before the Panel. The Planning Authority has demonstrated a high level of commitment to and expertise in strategic planning for the future development of the municipality.
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1. WHAT IS PROPOSED?
1.1 WHAT LAND IS AFFECTED? Amendment C43 to the Warrnambool Planning Scheme (WPS) is intended to implement the review of the Municipal Strategic Statement (MSS) and the results of various strategic investigations undertaken in recent years.
The amendment therefore applies to the whole of the City of Warrnambool.
1.2 STRATEGIC NATURE OF THE AMENDMENT Amendment C43 is solely focused on the strategic or policy elements of the WPS.
It makes changes only to the Local Planning Policy Framework (LPPF) and consequential administrative changes elsewhere in the scheme.
It is essentially a MSS amendment with some modifications to existing local policies. The Panel was advised that it is proposed to make further more substantial changes to local policies under a subsequent amendment.
Amendment C43 also does not include any zoning and overlay changes arising from the modified LPPF or any of the strategic studies upon which the changes to the LPPF are based. It was explained to the Panel that it is the Planning Authority’s intention that the subsequent amendment to the WPS will also effect further changes of this kind.
Nevertheless the Panel has been required as part of its consideration of Amendment C43 to address some matters which relate to the future rezonings and overlays as the MSS contains a number of objectives and statements of intent which have geographical implications, a 20 year Land Use Strategy Plan (in plan form) referenced by Clause 21.03-2 and Outline Plans for a number of localities in Clause 21.05. Many of the submissions received in relation to the amendment related to the proposed new or revised Outline Plans at Clause 21.05.
1.3 DETAILS OF THE AMENDMENT
Amendment C43 is the principal outcome of the first major review of the Warrnambool Planning Scheme. The Planning Authority’s comprehensive Three Year MSS Review was completed at the end of 2002.
The amendment is also designed to implement the Warrnambool Land Use Strategy, September 2004 (WLUS), by the Research Planning Design Group, Parsons Brinckerhoff and SGS Economics.
The preparation of Amendment C43 and the relevant supporting strategies involved a range of community consultations.
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Amendment C43 is intended to deliver a structurally simplified and more transparent Local Planning Policy Framework.
Amendment C43 is also intended to provide a more focused and realistic work program for the next three years largely based on the WLUS Implementation Plan.
Changes to the Municipal Strategic Statement at Clause 21
Amendment C43 replaces the existing MSS with a revised version based on the recommendations of the Three Year MSS Review report and the findings of the strategic work undertaken by Council. The MSS has changed both in terms of format and content. The revised MSS is somewhat longer than the current MSS reflecting the significant body of strategic work that needed to be implemented, as well as the relocation of appropriate material into the MSS from a number of deleted Clause 22 policies. The format of the MSS reflects the structure of the State Planning Policy Framework (SPPF) of the WPS. Appendix D to this report contains an annotated version of the MSS indicating the changes from the existing version.
The following table indicates the structural differences between Council’s current MSS and the version proposed in Amendment C43.
Gazetted MSS Format Warrnambool C43 Format 21.01 Municipal Strategic Statement - 21.01 Municipal Profile Introduction 21.01-1 Settlement and Housing 21.01-2 Environment 21.01-3 Economic Development 21.01-4 Infrastructure 21.02 Overview of Warrnambool City 21.02 Key Influences Council 21.03 Factors Influencing Planning and 21.03 Vision-Strategic Development Framework Including Strategic Framework Map 21.03-1 Council Plan 2005-2009 21.03-2 Warrnambool Land Use Strategy 21.04 Municipal Vision Statement 21.04 Objectives-Strategies- Implementation 21.05 Corporate Plan 21.05 Housing 21.06 CityPlan 21.06 Environment 21.07 State Planning Policy Framework 21.07 Economic Development 21.08 Settlement and Housing 21.08 Infrastructure Development 21.09 Environment 21.09 Monitoring and Review 21.10 Economic Development 21.10 Reference Documents 21.11 Infrastructure 21.12 Monitoring and Review
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Changes to local policies at Clause 22
As part of Amendment C43, 17 of the existing Clause 22 policies are proposed to be deleted. Most are deleted on the basis that they include ‘objectives’ and ‘strategies’ that should be included in the MSS, rather than be configured as ‘policies’ in Clause 22. The relevant elements of these policies have been included in the MSS. Three policies are proposed to be deleted on the basis that they are not relevant to the operation of the planning scheme and would serve no useful purpose by being retained. The following local polices are proposed to be deleted with relevant material included in the MSS: 22.01-1 Aboriginal Heritage 22.01-4 Wangoom Road Area 22.01-5 Allansford 22.01-6 Bushfield and Woodford 22.01-7 Bellmans and Quinns Lanes 22.02-1 Coastal Areas 22.02-2 Rare and Threatened Species 22.02-8 Agricultural Production 22.02-11 Hopkins River Open Space Policy 22.03-1 Central Activities District 22.03-2 Gateway Precinct 22.03-4 Residential and Industrial Interface 22.04-1 Flagstaff Hill Local Policy 22.04-3 Gaming Venues and Machines Local Policy.
The following policies have been deleted on the basis that they serve no useful purpose: 22.01-11 Large Lot Local Policy 22.01-12 Unit Development/Public Open Space for Multi Unit Developments 22.02-5 Pest Plant Management
The retained/modified suite of local planning policies uses the same four headings as in the State Planning Policy Framework (SPPF) of the scheme:
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Housing Clause 22.01-1 Building Construction in Low Density Residential and Rural Living Zones Clause 22.01-2 Logans Beach Clause 22.01-3 South Warrnambool Village Precinct Clause 22.01-4 Warrnambool Foreshore Precinct Clause 22.01-5 Lake Pertobe Precinct Clause 22.01-6 Breakwater Harbour Precinct Clause 22.01-7 Escarpment Park Precinct
Environment Clause 22.02-1 Urban Floodway Local Policy Clause 22.02-2 Potential for Groundwater Recharge Clause 22.02-3 Susceptibility to Mass Movement Clause 22.02-4 Steep Land Clause 22.02-5 Hilltop and Ridgeline Protection Clause 22.02-6 Dams Clause 22.02-7 Fire Protection Local Policy Clause 22.02-8 Heritage Precincts Local Policy Clause 22.02-9 Wild Coast Precinct
Economic Development Clause 22.03-1 Industrial Development Clause 22.03-2 Excisions of Dwellings in the Rural Zone Clause 22.03-3 Warrnambool and District Base Hospital Development Plan Policy
Infrastructure Clause 22.04-1 Sewerage Treatment Plant Local Policy Clause 22.04-2 Saleyards Local Policy Clause 22.04-3 Premier Speedway Clause 22.04-4 Lake Gillear Sporting Area
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The following table prepared by the Planning Authority lists the existing policies in Clause 22, together with an overview of proposed changes in Amendment C43.
Gazetted LPP Format and Nature of Change in Amendment C43 (if any)
22 Preamble
22.01 Settlement and Housing
22.01-1 Aboriginal Heritage Deleted. Appropriate elements included in the MSS.
22.01-2 Sites of Heritage Interest Deleted.
22.01-3 Urban Floodway Local Policy Retained unchanged. Now at 22.02-1.
22.01-4 Wangoom Road Area Deleted. Appropriate elements included in the MSS.
22.01-5 Allansford Deleted. Appropriate elements included in the MSS.
22.01-6 Bushfield and Woodford Deleted. Appropriate elements included in the MSS.
22.01-7 Bellmans and Quinns Lanes Deleted. Appropriate elements included in the MSS.
22.01-8 Building Construction in Low Density Residential and Rural Living Zones. Retained unchanged. Now at 22.01-1.
22.01-9 Logans Beach Retained unchanged. Now at 22.01-2.
22.01-10 Heritage Precincts Local Policy Retained unchanged. Now at 22.02-8.
22.01-11 Large Lot Local Policy Deleted – covered by DDO1.
22.01-12 Unit Development and Public Open Space Provision for Multi Unit Developments Policy deleted. Serves no purpose.
22.01-13 South Warrnambool Village Precinct Retained unchanged. Now at 22.01-3.
22.01-14 Warrnambool Foreshore Precinct Retained unchanged. Now at 22.01-4.
22.01-15 Lake Pertobe Precinct Retained unchanged. Now at 22.01-5.
22.01-16 Breakwater Harbour Precinct Retained unchanged. Now at 22.01-6.
22.01-17 Escarpment Park Precinct Retained unchanged. Now at 22.01-7.
22.02 Environment
22.02-1 Coastal Areas Deleted. Appropriate elements included in the MSS.
22.02-2 Rare and Threatened Species Deleted. Appropriate elements included in
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the MSS.
22.02-3 Potential for Ground Water Recharge Retained unchanged. Now at 22.02-2.
22.02-4 Susceptibility to Mass Movement Retained unchanged. Now at 22.02-3.
22.02-5 Pest Plant Management Deleted. Serves no purpose.
22.02-6 Steep Land Retained unchanged. Now at 22.02-3.
22.02-7 Hilltop and Ridgeline Protection Retained unchanged. Now at 22.02-5.
22.02-8 Agricultural Production Policy deleted and appropriate elements included in the MSS.
22.02-9 Excisions of Dwellings in the Rural Zone Retained unchanged. Now at 22.03-2.
22.02-10 Dams Retained unchanged. Now at 22.02-6.
22.02-11 Hopkins River Open Space Policy Deleted. Appropriate elements included in the MSS.
22.02-12 Fire Protection Policy Retained unchanged. Now at 22.02-7.
22.02-13 Wild Coast Precinct Retained unchanged. Now at 22.02-9.
22.03 Economic Development
22.03-1 Central Activities District Deleted. Appropriate elements included in the MSS.
22.03-2 Gateway Precinct Deleted. Appropriate elements included in the MSS.
22.03-3 Industrial Development Retained and reconfigured. Now at 22.03-1.
22.03-4 Residential and Industrial Interface Deleted. Appropriate elements included in the MSS.
22.03-5 Saleyards Local Policy Retained unchanged. Now at 22.04-2.
22.04 Infrastructure
22.04-1 Flagstaff Hill Local Policy Deleted.
22.04-2 Warrnambool District Base Hospital Development Plan Retained unchanged. Now at 22.03-3
22.04-3 Gaming Venues and Machines Local Policy Deleted. Appropriate elements included in the MSS.
22.04-4 Premier Speedway Retained unchanged. Now at 22.04-3.
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22.04-5 Lake Gillear Sporting Area Retained unchanged. Now at 22.04-4.
22.04-6 Sewerage Treatment Local Policy Retained unchanged. Now at 22.04-1.
As earlier mentioned, Amendment C43 is the first part of a staged reassessment of the existing local policies at Clause 22. The changes to local policies proposed under Amendment C43 can therefore be viewed as interim only.
It was indicated to the Panel that a subsequent amendment or amendments will likely convert many of the then remaining Clause 22 local policies into overlays.
The Panel gives in principle support to that future conversion of the local policies.
1.4 EXHIBITION OF THE AMENDMENT
WCC formally resolved to exhibit Amendment C43 on 29 August 2005, after having received Ministerial approval to do so on 20 June 2005.
The regional office of the Department of Sustainability and Environment (DSE) had earlier advised on 9 June 2005 that:
... it would seem impractical to give notice to all owners and occupiers of land in the Warrnambool municipality so the provisions of s19 (1A) [of the Planning and Environment Act 1987] would apply to the MSS rewrite amendment.
Amendment C43 was therefore exhibited for two months between 8 September and 8 November 2005 with public notice comprising the following: • notice published in the Victorian Government Gazette on 8 September 2005; • individual notification to those stakeholders who made submissions to or were party to the preparation of the Warrnambool Land Use Strategy (approximately 100 letters sent on 2 September 2005); • notice to Government bodies prescribed by the Act; and • notice published in the Warrnambool Standard on the 3 September, 17 September and 1 October 2005.
In addition, the October 2005 edition of the WCC publication City News included comprehensive coverage of the content of the amendment and invited public comment and attendance at a public information session. City News is distributed to all residents and businesses in the municipality.
That public information session was held at the WCC offices on the evening of 6 October 2005. The information session provided an overview of the amendment and explanation of future processing.
WCC also prepared media releases and the amendment received exposure on the regional radio station 3YB and on ABC radio.
1.5 PLANNING AUTHORITY CONSIDERATION OF SUBMISSIONS
As a result of the exhibition process a total of 37 submissions (including 6 late submissions) were lodged with the Planning Authority. WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 13
At its meeting of 12 December 2005, WCC considered the 31 submissions that it had received by that time and resolved to request the appointment of a panel.
At its meeting of 20 February 2006, WCC considered in detail the 35 submissions then to hand. The WCC responses to the submissions formed the basis of Part 2 of Planning Authority’s submission to the Panel. Two submissions were received after this meeting, resulting in a total of 37 submissions before the Panel.
Prior to the Panel hearing, WCC resolved to make to a number of changes to the exhibited MSS including incorporating modifications proposed by DSE and a number raised by submitters. The Panel was also advised of those changes.
WCC forwarded all submissions to the Panel including those in support of the Amendment and the 6 late submissions.
1.6 APPOINTMENT OF PANEL AND HEARINGS
The Panel was formally appointed under delegation by the Minister for Planning on 20 January 2006.
A directions hearing was held by the Panel at the WCC offices on 9 March 2006. The Planning Authority was represented at the directions hearing by its consultants and a Council officer. Other agency representatives attended as did a number of private submitters.
As a consequence of the directions hearing, a number of directions were handed down by the Panel.
The directions related to the provision of expert witness reports, the availability of strategic reports, and the provision of facilities in support of the hearing. All directions were complied with to the Panel’s satisfaction.
In addition, the Panel directed that material in relation to the Allansford industrial area investigations must be presented by way of expert evidence, while indicating that material in relation to the WLUS might be presented by way of submission. At the subsequent hearing, the latter material was presented as expert evidence in any event and Mr Budge, the witness, was made available for cross examination as were the other witnesses.
The Panel hearing took place at the Warrnambool City Offices from 10 to 12 April 2006.
The Panel was presented with written and oral submissions on behalf of the Planning Authority, some Government agencies and individual submitters. Expert evidence was called and tested. See Appendix A for a list of all submitters and witnesses.
The Panel also inspected various parts of the municipality referred to in submissions.
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2. STRATEGIC CONTEXT
This section describes the existing strategic context within which issues associated with Warrnambool C43 are to be considered by the Panel.
The key policies that provide the context for considering Warrnambool C43 are: Warrnambool Planning Scheme - State Planning Policy Framework (SPPF); and Warrnambool Planning Scheme - Local Planning Policy Framework (LPPF).
The LPPF itself is proposed to be changed by Amendment C43. Nevertheless the Panel is required to be satisfied that all aspects of the LPPF are integrated and strategically sound – albeit recognising that there are to be subsequent conversions of policies to overlays.
2.1 STATE PLANNING POLICY FRAMEWORK (SPPF) The SPPF clauses which relate to the key matters raised in submissions are: • Clause 11 - Introduction, Goal and Principles aims to balance competing land use and development policies which integrate environmental, social and economic factors to create net community benefit and sustainable development; • Clause 14 - Settlement aims to ensure sufficient supply of land is available for residential, commercial, industrial, recreational, institutional and other public purposes and to facilitate the orderly development of urban areas; • Clause 15 - Environment aims to consolidate urban development and transport integration and the retention of existing vegetation, or revegetation as part of subdivision and development; • Clause 16 - Housing aims to ensure an adequate supply of various housing types that is well designed which respects the neighbourhood character and make the best use of existing infrastructure; • Clause 17 - Economic Development aims to encourage the concentration of major retail, commercial, administrative, entertainment and other cultural developments into activity centres which provides a variety of land uses and are accessible to the community, efficient infrastructure use and the aggregation and sustainability of commercial developments; and • Clause 18 - Infrastructure aims for higher land use densities near railway stations, major bus terminals, tramways and principal bus routes.
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2.1.1 THE MSS REVIEW
The WPS, approved on 22 April 1999, has been in operation for nearly 7 years.
At the time the Three Year MSS Review was undertaken, Section 12A (5) of the Act required planning authorities to review their MSSs at least once every three years. Section 12A (5) now requires them to review their planning schemes as a whole every three years.
The MSS and Three-Year Review Practice Note (DoI, October 2001) establishes that a ‘three year review report’ is to be presented to the planning authority (and ultimately to the Minister for Planning) which: identifies the major issues facing the municipality; demonstrates how the MSS implements State planning policy; assesses the strategic performance of the scheme; documents the strategic work that has been completed or carried out since the approval of the scheme and any additional work required to strengthen the strategic direction of the planning scheme; articulates the monitoring and review which has been carried out; outlines the consultation process and its outcomes; and makes recommendations arising from the review including: - possible changes to the strategic objectives of the MSS; - possible changes to the implementation tools; and - matters requiring further strategic work.
The Warrnambool MSS Review recommended: reformatting the MSS in accordance with the then Department of Infrastructure (DoI) Practice Note on MSS format; updating the background information to take account of the most recent census and other sources of information; reviewing the ‘issues’, ‘objectives’, ‘strategies’ and means of ‘implementation’ to ensure that they conform with their intended purpose; reviewing whether local policies are achieving their intended purpose and ensuring that they conform with the DoI Practice Note on local policy; and developing a more meaningful monitoring and review process for inclusion in the MSS.
In relation to strategic elements the Review recommended: a strategic work program with the review of CityPlan as the highest priority; finalising all outstanding planning scheme amendments; ensuring that the LPPF is consistent with the SPPF; undertaking targeted consultation with key stakeholders to review the strategic issues facing Warrnambool; implementing (where necessary) the further strategic work that has already been commissioned or completed; reviewing whether the further strategic work that was identified when the scheme was approved but yet to be undertaken was still relevant; and
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commissioning and implementing further strategic work either identified when the scheme was approved and considered to still be relevant; or identified in response to emerging issues since the approval of the scheme.
2.1.2 OTHER WCC STRATEGIES AND POLICIES
This section of the Panel report draws heavily on descriptions included in the submissions presented to the Panel on behalf of the Planning Authority.
Amendment C43 implements a number of strategic studies and policy documents prepared by WCC.
Warrnambool Land Use Strategy (WLUS), September 2004, by Research Planning Design Group, Parsons Brinckerhoff and SGS Economics.
The WLUS is the key strategic planning document on which the amendment is based.
The WLUS is the successor to the CityPlan strategy that was relied upon in the development of the current MSS.
Parts of the WLUS are based on or provide a synthesis of other strategies and policies prepared by or for the Planning Authority including: • Allansford Urban Design Framework, Final Report, July 2003 by Connell Wagner; • Warrnambool City Centre Urban Design Framework (Volumes 1 and 2), June 2001 by David Lock and Associates; • Warrnambool Retail Strategy, Revised June 2003 by Essential Economics; and • Industrial Land Strategy, September 2001 by Sinclair Knight Merz.
The amendment proposes to implement the WLUS by: • including relevant material in Clauses 21.01 (Municipal Profile); 21.02 (Key Influences); 21.05 (Housing); 21.06 (Environment); 21.07 (Economic Development); and 21.08 (Infrastructure); • including key elements of the WLUS at Clause 21.03-2; • including key elements on the North East Corridor Outline Plan at Clause 21.05; • including key elements of the Coastal/Hopkins River Outline Plan at Clause 21.05; • including key elements of the Dennington North Outline Plan at Clause 21.05; • including key elements of the North of Merri River Outline Plan at Clause 21.05; and • including the WLUS as a reference document of the scheme.
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Warrnambool Retail Strategy (WARS), Revised June 2003 by Essential Economics
The WRS involved the revision and updating of the 2001 Retail Strategy. The update was undertaken in recognition of growth in the Warrnambool retail sector and the availability of 2001 ABS census material. The updated strategy document is proposed to be included in the WPS as a reference document and relevant components are proposed to be included in the MSS.
The predecessor Warrnambool Retail Strategy of 2001 is now and would continue to be included as a scheme reference document to provide the context for the 2003 revision, although there would be no direct references to the 2001 Strategy in the scheme as amended by Amendment C43.
The revised WRS reviewed and updated retail projections for the City, including the retail hierarchy and floor space requirements. It found that a minimum of 23,000 square metres of additional retail floor space would be required by 2011 and proposed that it be distributed as follows: • up to 10,000 square metres at the Gateway Plaza over the next 10 years; • 12,000 square metres in the City Centre and other sites including the eastern approach to the City; and • potentially in other locations where justified by a retail demand and impact assessment study indicating minimal impact on existing centres.
In the Panel reports for Amendments C28, C29 and C30 relating to the Gateway Plaza Centre and Amendment C37 relating to Northpoint, however, even the revised demand figures of the 2003 study were found to be out of date. The need for an urgent review of the municipality’s retail floor space demands has been identified as a result of those panel processes and has been accepted by the Planning Authority.
The strategy nevertheless makes recommendations concerning the future role of several main retailing localities in the City including the central activities district (CAD), the Gateway Plaza Centre and adjacent land, the bulky goods cluster at the eastern edge of the municipality, the Fletcher Jones site and Northpoint on Mortlake Road.
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Eastern Activity Precinct Structure Plan (EAPSP), August 2004 by Hansen Partnership
The EAPSP for the Gateway Plaza activity centre was prepared as a consequence of the Panel recommendations in relation to Amendments C28, C31 and C32.
The EAPSP addresses the following themes: • built form and scale; • transport and movement; and • landscape and environment.
Importantly, the EAPSP focuses on design, layout and staging of development at that centre.
The EAPSP is proposed to be included as a reference document and references to it included in Clause 21.05.
The accuracy of translation of the structure plan into the MSS was a concern of AMP in its submissions.
Industrial Land Strategy (ILS), September 2001 by Sinclair Knight Merz
The Industrial Land Strategy assessed the supply of and demand for industrial land in the municipality in terms of small/medium sized lots and large lots. It found that there was an adequate 10 year supply of small/medium sized lots in a suitable range of locations. It also found that there was no zoned land of sufficient size or in an appropriate zoning to accommodate large scale industrial development.
The ILS identified a number of principles for identifying new industrial land and applied these to 4 potential sites. The assessment indicated that the preferred site was at Taylor Street, Allansford.
The Allansford findings are reflected in the WLUS and in Amendment C43 via the Allansford Outline Plan and associated strategies.
Feasibility Study for a Dairy Industry Business Park, March 2001 by Sinclair Knight Merz
This study investigated the feasibility of developing a business park for the dairy industry in the south-west region of the State. It compared three potential locations - Allansford, Cobden and Koroit - and concluded that Allansford was the preferred location. The study included a demand scenario for the Allansford business park and concluded that there would be demand for 30-35 hectares over the next 10 years.
The feasibility study is proposed to be included as a scheme reference document.
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Allansford Urban Design Framework (UDF), July 2003 by Connell Wagner
This project was jointly commissioned by WSC and DSE. The project involved an analysis of the existing situation in the township, the identification of emerging trends and issues and the development of an urban design framework under the themes of: • Town boundaries; • Town entries; • Traffic and transport; • Ziegler Parade; • Hopkins River and pathways system; and • Recreation reserve and residential development. The UDF includes an Implementation Plan.
Importantly, the area covered by the UDF does not include the area of the proposed industrial precinct. This precinct is to the east of the township, outside the UDF boundary and for the most part outside the municipality.
Warrnambool City Centre Urban Design Framework (WCCUDF) (Volumes 1 and 2), June 2001 by David Lock and Associates and Ors
The Warrnambool City Centre Urban Design Framework (WCCUDF) was prepared as part of the State Government’s ‘Pride of Place’ program. It covers the City centre, described as the land abutting and between Henna and Banyan Streets and Raglan Place and Merri Street. It is intended to remain the primary commercial centre in the municipality serving a regional commercial and tourism role. The study was directed at making the centre ‘a more vital, attractive and liveable place for residents and visitors’.
Relevant components of the study are proposed to be included in the MSS and the study as a whole is to be a reference document of the WPS.
Warrnambool Economic Development Strategy (WEDS), 2001 by Sinclair Knight Merz
The Warrnambool Economic Development Strategy (WEDS) provided Council and other stakeholders with a range of strategies, policies and practices to encourage economic development and tourism in Warrnambool.
It provides comprehensive recommendations under the themes of Tourism; Health and Education; Business Services; Food Manufacturing; Regional Service Industries; Managing Change; Promotion; Investment Facilitation; Organisation Structure and Monitoring.
It is proposed to be included as a WPS reference document and some material is to be included in the MSS.
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Warrnambool Drainage Strategy (WDS), 2003 by Hyder Consulting
The Warrnambool Drainage Strategy (WDS) provides an assessment of required stormwater drainage works and costings, and addresses drainage design criteria; prioritised drainage works; funding arrangements; maintenance; community awareness and consultation; the wetlands facility at Warrnambool racecourse; and monitoring and review.
It is proposed to be included as a WPS reference document and some material is to be included in the MSS.
Warrnambool Stormwater Management Plan (WSWMP), 2002 by Earth Tech Engineering
The Warrnambool Stormwater Management Plan (WSWMP) provides for the protection and enhancement of local waterways by improving the quality of stormwater draining from Warrnambool’s urban areas. It includes an analysis of stormwater issues and provides a management framework that promotes Water Sensitive Urban Design.
It is proposed to be included as a WPS reference document and some material is to be included in the MSS.
Council Plan 2005-2009
The Council Plan by WCC is the Council’s overarching strategic planning document and underpins many of the strategic directions proposed in Amendment C43. It is proposed to be included as a WPS reference document and some material is to be included in the MSS. Other Council Documents and Strategies
In addition to the key documents and strategies described above, Council had regard to the following strategies, policies and studies prepared by or on behalf of Council: • Design Guidelines for Subdivisional Developments, Urban/Rural Road and Drainage Construction Projects, and Traffic Management, May 2003 by WCC; • Warrnambool City Centre Business Plan 2001/2002 by Planning by Design; • City of Warrnambool Road Safety Profile, May 2002 by WCC; • Warrnambool Heritage Study – A report on selected sites at Allansford, Bushfield, Woodford and Farnham, 2001 by H Doyle, L Honman, R Aitkin; • City of Warrnambool Urban Conservation Study 1983 by A Ward; • Destination Warrnambool, 2004; • Warrnambool Harbour Precinct Report by Regional Innovation P/L, Urbanomics P/L and Asset Group; • Merri Street Precinct – Liebig Street to Gibson Street Urban Design and Planning Analysis, May 2000 by Peter McNabb and Associates Pty Ltd;
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• Allansford/Warrnambool Integrated Freight Hub, July 2001 by Fisher Stewart; and • Logans Beach Urban Design Guidelines, February 2000 by Connell Wagner.
2.1.3 OTHER AGENCY REPORTS AND STRATEGIES In addition to the WCC strategies and policies discussed above, the preparation of Amendment C43 also has taken into account and in some cases gives direct effect to a number of relevant strategic documents prepared by other agencies.
Great Ocean Road Region – A Land Use and Transport Strategy, 2004, DSE
The Great Ocean Road Region Strategy (GORRS) is a 20 year land use and transport plan for managing growth and change across the region. Warrnambool is located at the western end of the region. The Strategy is focused on 4 directions built around the key issues of Environment, Settlement, Access and Prosperity.
The strategy is now a reference document of the WPS. Great Ocean Road Landscape Assessment Report, 2003, Planisphere for DSE
The Great Ocean Road Landscape Assessment Report (GORLAR) was undertaken as part of the Great Ocean Road Region Strategy and included a ‘Municipal Toolkit’ for Warrnambool to assist in the implementation of the project.
The Toolkit contains a synopsis of landscape character types and precincts, an explanation of landscape elements, a summary of key landscape issues and proposed implementation recommendations. WCC anticipates that subsequent amendments will include some of the landscape precincts identified in GORLAR as Significant Landscape Overlays. Under amendment C43 some material would be included in the Mss and the report would become a reference document. Glenelg Hopkins Regional Catchment Strategy 2004 – 2007, Glenelg Hopkins CMA The GHRCS provides an umbrella environmental strategy for the region and together with a number of subordinate strategies has informed the preparation of Amendment C43. The CMA has supported the Amendment C43 treatment of the strategy: references in the Mss and inclusion of the strategy and sub-strategies as reference documents. Other Agency Documents and Strategies The Panel was advised that the preparation of Amendment C43 also had regard to: • Tourism Industry Strategic Plan 2003-2006, Tourism Victoria; • Shipwreck Coast Tourism Business Plan 2004-2007; • Coastal and Marine Planning Program, South West Victorian Planning Scheme Review, July 2001, Connell Wagner;
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• South West Sustainability Blueprint, Prepared for the South West Sustainability Partnership by Regional Innovation Pty Ltd; and • Golf Tourism 2003-2006 Plan, Tourism Victoria.
2.1.4 KEY CHANGES TO LOCAL SCHEME CONTENT Since its approval in April 1999, the WPS has been the subject of numerous local amendments. While most of the amendments have involved relatively minor site- specific rezonings and overlay changes, there have been some significant amendments with strategic implications. They represent part of the local ‘policy’ context for the current amendment. Relevantly to the issues raised in submissions, they include:
• Amendment C12 which implemented the Logans Beach Urban Design Guidelines.
• Amendment C28 proposed to rezone 2.05 hectares of land located to the immediate east of the Gateway Plaza Shopping Centre from part Residential 1 Zone and part Business 4 Zone to a Business 1 Zone, to facilitate the expansion of the existing centre. It also proposed to delete the Development Plan Overlay Schedule 1(DDO1) and (DDO4).
• Amendment C31 proposed to rezone 2.26 hectares of land located to the west of the Gateway Plaza Shopping Centre from part Residential 1 Zone and part Business 4 Zone to a Business 1 Zone to facilitate the expansion of the existing centre. It also proposed to delete the DDO1 and DDO4.
• Amendment C32 proposed the rezoning of 7 hectares of land on the north- west corner of Horne Road and Raglan Parade from Rural Zone to Business 4 Zone. These 3 amendments were heard by a single Panel which recommended their approval. Amendment C28 was recommended for approval subject to a 5100 square metre shop floor space limit on the Gateway Plaza Centre; Amendment C31 – approval subject to a 5100 square metre shop floor space limit on the land (west of the Gateway Plaza Centre); and Amendment C32 – approval subject to a reduced rezoning area and inclusion of floor space limits in Business 4 Zone.
Amendment C32 has been approved but the other amendments await the finalisation of an agreement under section 173 of the Act.
Relevantly to present submissions, the panel for those amendments recommended the preparation of a structure plan for the wider Gateway Plaza Precinct which is now proposed to be included in the MSS via Amendment C43, references to the long term planning objectives for the centre in the MSS and inclusion of the Retail Strategy as a reference document of the WPS.
• Amendment C37 related to the Northpoint Centre on the Hopkins Highway to the north of Warrnambool. It proposed a rezoning of some 21,000 square metres of Residential 1 land to Business 1 with an as of right floor space limit of 6000 square metres.
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The panel recommended approval subject to a reduction of the as of right floor space figure to 4500 square metres. The panel found that the floor space demand figures in the revised Retail Strategy were a significant underestimation.
WCC has supported the panel views and updating of the floor space figures has been recognised as a priority.
• Amendment C47 proposes the rezoning of a small area of Deakin University land with frontage to the Princes Highway close to the Gateway Plaza Centre from the Rural Zone to the Mixed Use Zone. A mix of highway related uses is proposed under an accompanying permit application.
This amendment has not proceeded beyond a request for further information and the project may be modified.
2.1.5 STRATEGIC STUDIES PROCEEDING SEPARATELY Amendment C43 does not deal directly with the following other strategic investigations which WCC is either undertaking or preparing to undertake:
• North Warrnambool Flood Study 2003 (Amendment C44 pending) • Rural Zones Review and Implementation • Heritage Gap Study (Stage 3) • Conservation Management Plan for Fletcher Jones Site • Urban Design Framework for Fletcher Jones Site • Dennington North Structure Plan • North East Structure Plan • Allansford Industrial Business Park Structure Plan • Retail Strategy Review. Some of those studies do, however, relate to issues raised before the Panel.
2.1.6 CONSEQUENTIAL ZONING AND OVERLAY CHANGES
As earlier noted Amendment C43 does not include any consequential zoning or overlay changes arising from the strategic studies and/or MSS Review. It was indicated to the Panel that a subsequent amendment or amendments to the planning scheme will implement the appropriate changes. The Planning Authority representatives indicated that this will be assisted by the further (and more detailed) strategic investigations being undertaken by Council and/or proponents, including the preparation of Structure Plans that are well advanced in some areas.
2.1.7 PANEL COMMENT
The above discussion of strategic investigations and policies indicates the extensive strategic work which lies behind Amendment C43. The Panel commends the City of
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Warrnambool for the thoroughness and breadth of its investigations into key strategic issues in the municipality.
The above discussion also indicates that major strategic investigations by the City are ongoing and that there is also constant change to the State policy context for planning scheme administration and amendments.
The fluidity of the strategic context for decision-making is a normal characteristic of the assessment of scheme amendments. It does not necessarily mean therefore that an amendment or part of it must await the outcome of particular investigations or new policy development, such as the finalisation of the Allansford Business Park Structure Plan, growth corridor plans or new floor space figures for the municipality. It is in the very nature of planning that demands are ever present for research and policy responses to emerging issues in land use and development. Provided a planning authority or panel is satisfied that the proposed content of the amended scheme would be robust itself, would enable those investigations to usefully continue and subsequent amendments to be made, then the amendment to hand can be considered and resolved.
The Panel is satisfied that this is the case here provided some minor adjustments are made to the content of the amendment and future strategic work programs.
The Panel is also satisfied that Amendment C43 is properly founded on strategic investigations and appropriately relates to the wider State and local policy context.
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3. ISSUES
3.1 NATURE OF SUBMISSIONS
The 37 submissions received covered a variety of issues including support for the amendment (7 submissions), the relationship of specific development proposals to the MSS, concerns about industrial development at Allansford, expansion of the retailing area at the eastern approach to the City, further residential development of the sensitive foreshore area at Logans Beach and the shortage of affordable housing in the City of Warrnambool and surrounding areas.
The table below presented by the Planning Authority sets out the issues raised by submitters and the relevant number(s) of the submission(s) that address each issue.
Issue Relevant Submission Number
General Support 1, 2, 13, 14, 15, 25, 34
Specific MSS proposals 1, 25
Site specific proposals 3, 5, 7, 8, 11, 12, 19, 22, 23, 24, 31
General commentary on the MSS 4, 28, 32, 33, 34
General commentary on local planning 9, 35, 36 policies
Allansford industrial proposal 6, 10, 16, 17, 18
Retail expansion to the east of the City 27, 29
Development issues at Logans Beach 13, 30
Housing affordability and availability 20, 21, 26, 37.
Submissions in support of the amendment referred to the following matters: • Overdue, and most needed to guide future development of the City; • Only minor wording and formatting concerns that can be overcome with editing, a matter of emphasis, definition of areas by street names; and • Differences between structure plan and exhibited amendment.
Submissions opposing the amendment referred to the following matters: • Extent of rural residential development; • Protection of the Francis Tozer Reserve; • Location of future urban growth boundary;
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• Future use of the Fletcher Jones complex; • Problems with flood prone land along Merri River; • Future development of industrial complex in Allansford and impact on residences in the vicinity; • Loss of native vegetation - should be aiming for net gain; • Implementation of protection measures for public access to foreshore areas and whale viewing area; • Lack of inclusion of references to affordable housing. Council should show leadership on this issue; • Future commercial/industrial opportunities on perimeter of City, especially in northern growth area; • Future integration of Deakin University into urban area; • Future retail growth in eastern ‘Gateway’ to City and drafting errors in figures; and • Interface with sensitive uses.
3.2 GROUPS OF ISSUES IDENTIFIED BY THE PANEL
The Panel identifies the following key groups of planning issues raised in relation to the amendment:
Strategic issues: • Future industrial development at Allansford • Future development of Gateway Plaza, Deakin University and the eastern entry to the City • Affordability and availability of housing • The amount and location of rural residential land • Staging and leapfrogging of residential/commercial development.
Drafting issues: • Wording clarity and currency of support documents.
Other issues: • Environment • General • Overlooking from recently approved residential developments in the central urban area.
3.3 PANEL ASSESSMENT OF THE ISSUES
The format of the Panel’s discussion of the submissions derives from the above issue groups identified by the Panel.
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For each issue group, after an outline of the submissions, the Planning Authority’s position is recorded, followed by the Panel’s assessment, conclusions and/or recommendations.
3.3.1 FUTURE INDUSTRIAL DEVELOPMENT AT ALLANSFORD Submission No 6 Mr P & Mrs E Evans The proposed Industrial Estate in Allansford should be zoned Rural Living instead of Industrial. Submission No 10 Mrs P & Mr G Edge Loss of grazing land and vegetation; Safety issues from railway traffic; Noise levels from industry, railway and increased road traffic; Drainage; The effect on the natural environment; The proposed freight rail alignment running through property; and The effect on surrounding farming land. Submission No 16 Ms K McLaren Rail link is incompatible with recent residential development in the area; Rezoning of Carroll’s Road between Tooram Road and Brown Street to Rural Living Zone to reflect present land use; Negative outcomes of the proposed Allansford Industrial Estate include: - Loss of semi-rural lifestyle; - Excessive noise and emissions to air; - Loss of privacy; - Loss of future residential land, vegetation and wildlife habitat; - Potential for groundwater contamination; - Issues of drainage; - Distress for stock and pets; - Sleep disturbance; - Overshadowing of properties by large shedding; - Decrease in property value. Submission No. 17 Mr T & Mrs D Anderton The location of the estate; The future growth of the township’s community; The type of industry allowed; Extra traffic on the roads; Noise pollution; Drainage; Environmental pollution; Effect on adjoining landholders; Too close to the township.
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Submission No. 18 Mr K & Mrs A Hards Rezone all of Carrolls Road to Rural Living Zone; Noise from industry; Traffic congestion; Negative impact on wildlife Submission No. 34 Mr G McLeod Supports most of MSS: - Queries how many dwellings in Allansford remain unsewered; - Neighbourhood character concerns; - Concern over plant species to be used in WSUD treatments; - Disagrees with many aspects of the Allansford UDF.
Presentation to Panel
Mr and Mrs Evans, Mr and Mrs Anderton, Mr and Mrs Edge, Ms McLaren and Mr and Mrs Hards all presented oral submissions at the hearing. Some photographs, plans and other documents were tendered. Planning Authority response to these submissions Mr Keaney’s submission on behalf of the Planning Authority included:
It is Council’s submission that the Allansford industrial proposal is an important initiative for the long term economic growth of Warrnambool and that it has extensive strategic justification.
Nevertheless, Council acknowledges the concerns of submitters and believes that these should be addressed through the preparation of the Structure Plan for the area. This intention to prepare a Structure Plan is included as an item of further strategic work in Amendment C43 and is a priority for Council.
In this context, Council has already called for ‘Expressions of Interest’ (EoI) from suitable consultants to prepare an Allansford Business Park Structure Plan. Depending on the outcome of the C43 process and the responses to the call for EoI, Council proposes to select suitable consultants to tender for the project.
The EoI specification highlights a number of requirements including: • the development of design and siting performance requirements; • subdivision layout; • traffic management; • drainage layout; • public works and utilities; • potential rail link; • steering committee; and • community engagement (Council emphasis). The EoI indicates that the outcomes of the community engagement process are to address issues associated with:
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• traffic management; • storm water drainage; • amenity impact; • design controls over the industrial estate; and • environmental impacts. Council is aware of the need to address residential/industrial interface issues (as evidenced by the inclusion of a specific strategy in Amendment C43) and will ensure that the Allansford Structure Plan process does this.
Council requests that the Panel support Council’s initiatives relating to the proposed expansion of the Allansford industrial area.
Panel assessment
During the course of the Panel hearing it was revealed that the City of Warrnambool and the adjoining Shire of Moyne had purchased a parcel of some 60 ha on the eastern outskirts of Allansford, adjacent to a major dairy processing plant in the Shire of Moyne, for the purpose of developing the industrial/business park.
This decision to purchase a sizable parcel of land at Allansford was based on a number of economic reports including the Industrial Strategy. Various sites in the City had been considered for establishment of the industrial/business park to accommodate businesses requiring large land areas, including a former tip site and land adjacent to the Fonterra factory on the western edge of Warrnambool. The Panel has not been persuaded that the site selection process was inappropriate.
The Panel noted that some submitters from Allansford had no objection to establishment of dairy-based industry in the area. There was also some recognition of the employment benefits which would result.
A major issue of concern to submitters, however, was whether suitable amenity buffers would be provided between the industry, any rail link and their homes. The question of buffer distances was put to Mr T Nott, Economist who gave expert evidence for the Planning Authority. He conceded that the industrial park could be designed so as to ensure that appropriate buffers to industrial plant were built into the site itself to protect the amenity of nearby residents without relying on buffers outside the site. The Panel’s view is that in the circumstances that this is a ‘greenfield’ site, there is no apparent reason that this should not be possible.
The Panel advises that the general feeling of the submitters was that a Rural Living Zone would provide appropriate recognition of the density of housing in the area and may result in greater attention being given to the protection of residential amenity from the effects of the adjacent industrial development. The Panel agrees that the density of dwellings in the rural area at the edge of Allansford is sufficiently high that a review of the zoning appears warranted. The zoning issue could be addressed as part of the structure plan process.
In the Panel’s view, the real issues to be addressed in the development of the industrial precinct in Allansford are the achievement of appropriate level of communication with the local community and decisions about the timing of any future development.
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The fact that an unpublicised land purchase has taken place ahead of the preparation of a structure plan to guide the future development of the locality is clearly causing considerable angst in the community. This is reflected by the number of submissions received from the area and the passion with which the submitters spoke at the hearing.
Panel recommendation
The Panel recommends that the Planning Authority proceeds urgently with the preparation of a structure plan for the industrial park and the adjoining residential areas. The siting of any rail siding and associated acoustic barriers is a key component of the plan.
The Panel supports the emphasis in the EoI document upon communication with the residents.
The Panel believes that this aim would be assisted by the establishment of a project steering committee which should include representatives of the local community.
Consideration should be given to the appropriate zoning for the land at the fringe of the Allansford township upon which the submitters reside.
The Panel also recommends that the required amenity buffers between industry and dwellings should be provided within the industrial land itself. If this arrangement requires more land than is has already been purchased, further land may be need to be obtained.
3.3.2 FUTURE DEVELOPMENT OF GATEWAY PLAZA, DEAKIN UNIVERSITY AND THE EASTERN ENTRY TO THE CITY Submission No 27 Restifa & Partners (on behalf of AMP Capital Investors) Retail Strategy 2001 - original version and revised version of 2003 are both outdated. Opposes the floor space allocations on the basis that they are outdated. Concern regarding requirements in the Eastern Activity Precinct Structure Plan for the use of the full floor space requirements on Business zoned land provided under Amendments C28 and C31 prior to consideration of further retailing east of Bescott Street. Inaccuracies in the Eastern Activity Precinct Structure Plan regarding mapping and promotion of land immediately north of the Gateway Plaza (owned by AMP) to be used for residential; and inaccuracies in denoting other (unspecified land) owned by AMP in a residential land use area. Inaccurate translation of the Structure Plan into the MSS. Lack of clarity regarding nature and extent of commercial uses on the Fletcher Jones site. Submission No 29 Barnes Planning on behalf of Noseda Retail Pty Ltd Objects to Clause 21.07-1 – Economic Development in that the Clause is prescriptive in its attempt to expand/restrict commercial activities. Objects to the 6000 sq m proposed at Northpoint Centre.
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Submission No 31 Deakin University Strengthen references to Deakin University in MSS. Want to include Deakin University inside urban growth boundary. Presentation to Panel Ms N Bannister with witness Mr A Biacsi on behalf of AMP Capital Investors, and Mr A Biacsi on behalf of Deakin University attended the hearing and spoke and tendered written submissions including plans, maps, photographs etc.
Planning Authority response to submissions The retail elements of the amendment are based on the revised Warrnambool Retail Strategy, elements of which have been implemented through Amendments C28, C31, C32, and C37 ... Although not all of these Amendments have been finalised, they have all been tested at Panel Hearings and Council has accepted the recommendation of the Panels.
These Panels found that the retail floor space projections are likely to be understated. The C37 Panel, for example, found that:
‘Before the Retail Strategy is written into the MSS (via Amendment C43), there should either be a review of the figures for the likely demand for future retail floor space in Warrnambool or at least a formal recognition that there is strong evidence to suggest that the figures in the Retail Strategy, 2002 (modified June 2003) are likely to be a significant underestimate (page 27)’.
Council agrees with this observation and proposes two responses: • Amendment C43 should be modified to delete references to retail floor space; and • A new retail strategy should be prepared as a matter of urgency. Accordingly, Council proposes revisions to Clauses 21.07 (Economic Development) and 21.09 (Monitoring and Review) that remove references to retail floor space... Council believes that the retail hierarchy in the exhibited amendment should be retained, but that the floor space figures should be removed as an interim measure. Council also believes that the current retail strategies should be retained as reference documents at Clause 21.10 to provide context for the retail hierarchy within Warrnambool, especially as this was an explicit consideration of the Amendment C28, C31, C32 Panel Report.
In addition, Council has sought tenders from a number of consulting firms to prepare a new retail strategy. This is a priority project for Council.
In relation to the proposed EAP Outline Plan, a Council review of the Plan has identified a number of minor drafting errors… These revisions are not significant and make minor alterations to boundaries so that it accurately reflects the content of the EAP Structure Plan. This revised Plan was provided to and discussed with representatives of Restifa and Partners Pty Ltd.
Council requests that the Panel support these revisions.
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The Planning Authority position with respect to the Deakin University submission was that location of the campus outside the urban growth boundary did not preclude the its ongoing development for educational purposes nor did it preclude consideration of future development proposals. The location of the urban growth boundary could be reassessed on the basis of any future proposals. It was noted that the university land proposed for mixed use north of the railway line was within the urban boundary.
It was agreed that references to the university in the MSS might be strengthened.
Panel assessment
It was generally agreed during the course of the hearing that the drafting and mapping errors identified by AMP and acknowledged by Council could be remedied by further discussion between the parties involved and the Panel supports this approach with appropriately modified wording in the MSS.
Of concern to the Panel, however, is the proliferation of big box retailing and other types of retailing on both sides of the highway at this principal entrance to the City. The Panel notes the support for this locality as one suitable for bulky goods retailing in the strategic statements but is concerned that there may be a squandering of the opportunity to develop an appropriate ‘gateway’ to the City at this location. The Panel notes also that there is said to be a shortage of office space in the City. Loss of the land zoned Business 2 at the City entrance to bulky goods and other retailing is perhaps unfortunate in the circumstances.
The Panel considers that Deakin University has a potential role to play in the strategic development of the City entry area due to its ownership of the underdeveloped wedge of land between the Highway and the rail line. The Panel notes that a rail platform has been recently developed to service university students, staff and visitors. It has the potential to serve a more substantial purpose.
The importance to Warrnambool of the campus, both educationally and as an employer, is acknowledged and the Panel concurs with the university and Planning Authority view that references in the MSS might be strengthened. The Panel supports the changes to the MSS suggested by Mr Biacsi with respect to the references to the university.
The Panel was not persuaded by the information presented at the hearing, however, that the inclusion of the university within the urban growth boundary was required or appropriate at present. The Panel recommends that the urban growth boundary should not be modified to include the university until such time as a general strategic review of the eastern approach to the City is undertaken.
It would seem appropriate for further discussions to be held between WCC and Deakin University when the university’s current campus planning exercise is further advanced - about the future zoning of the campus and its relationship with the commercial and residential areas to the north and west and to the Hopkins River to the south. This would be an appropriate element of the structure plan study.
Mr Biacsi's proposed wording changes to the MSS relating to the intended retail hierarchy are generally supported.
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One aspect of his suggested wording not supported by the Panel, however, is the reference to the CAD and Gateway Plaza - in the same terms - as having a ‘regional’ role. This may well be the case but the Panel believes that the primacy of the CAD referred to in the Retail Strategy is less well reflected when reference to a regional role for both centres is included in Clause 21.07-1 rather than merely describing them as ‘key’ centres.
The uncertain future use and development of the Fletcher Jones site was raised as an issue of concern and its future needs to be determined by Council as soon as possible.
The Panel supports the view put by Mr Biacsi that retailing on the Fletcher Jones site should be limited. The Retail Strategy, while it prefers to ‘keep the door open’ on the extent of retailing on that site given floor space shortages elsewhere, nevertheless is cautious about establishing a centre in competition with the CAD. A rezoning from Industrial to Mixed Use with scheduled floor space limits as suggested by Mr Biacsi would seem to be an appropriate option in the longer term.
The Panel supports a discouragement of extensive retailing on that site by MSS provisions but believes that Mr Biacsi’s wording referring to ‘minor’ retailing only and the non-inclusion of specified types of major stores is overly prescriptive at least until current investigations into the future of the site are completed.
Panel recommendations
The Panel recommends that as a matter of urgency work be commenced on an Eastern Entry Structure Plan with the aim of developing a cohesive activity precinct of an urban design standard commensurate with its location at the main gateway to the City. Issues to be addressed in the study would include access to and within the precinct, urban design issues such as building bulk and design, the creation of attractive public spaces, advertising controls, the future use of the Deakin Campus land, planning for office space and various types of retailing.
The wording changes to the MSS put forward by Mr Biacsi on behalf of AMP are supported subject to the qualifications expressed above.
The EAPSP mapping errors need to be corrected in discussion between Council and AMP.
The Panel supports an urgent review of the Retail Strategy to enable retailing floor space figures to be reintroduced in the WPS and the interim wording now proposed for the MSS removed. This project must include consideration of the future use of the Fletcher Jones site.
3.3.3 AFFORDABILITY AND AVAILABILITY OF HOUSING Submission No 20 South West Community Legal Centre No meaningful strategies for the encouragement of affordable housing in the Warrnambool municipal area. Submission No 21 Community Connections Lack of affordable housing and strategies.
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Recommendations: - Warrnambool City Council develop and manage its own affordable housing stock; - Develop a clear statement in relation to affordable/social housing in the MSS; - Develop a clear strategic policy response to affordable/social housing; - Involve local stakeholders (especially housing associations) in developing policy; - Establish a Housing Advisory Committee; - Advocate for State Government leadership on roles for Local Government in affordable/social housing; - Develop processes to fast track town planning applications for social housing projects; and - Developers contribute further to social justice objectives in new developments. Submission No 26 South West Housing Advisory Group Has an interest in the provision of housing in the South West. Mr Longmore’s submission at the hearing included that Council should sponsor or facilitate the creation of a Housing Association in Warrnambool to address the issue of improved availability of affordable housing. Submission No 37 Chris Drury Affordability of housing and land is influenced by planning complexity and location of urban growth boundary keeping prices high together with unreasonable permit conditions. Also concern that on-site disposal of domestic waste water is being viewed as increasingly unacceptable and leads to resistance to small lot subdivision.
Presentation at hearing
Mr Neil Longmore on behalf of the South Western Housing Advisory Group, Messrs David Ryan and Gary Lucas for Community Concerns and Mr Lindsay Stowe for the Salvation Army Housing Service made a joint presentation at the hearing. Mr Murray Murfett, Executive Manager, Health and Amenity Services at WCC attended the hearing to elaborate on WCC’s program of ownership of low cost housing.
Planning authority response to submissions
The Planning Authority response to the housing agencies was: Council acknowledges that affordable housing is a key issue for the Municipality, but it also believes that the planning system (and Amendment C43) is only one of a number of tools that are available to address this issue.
The WLUS includes the following commentary on ‘housing affordability’.
‘Residential property prices within Warrnambool have risen dramatically over the last two years. Between 1998 and 2002, the median price of a vacant housing block in Warrnambool has increased by 63% from $30 000 to $48 900 and similar price increases are recorded for developed properties (Know Your Area, DSE).
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Research has shown that housing affordability is deteriorating for many working Australians and is now of concern on a National level (National Research Consortium, 2001). With approximately 40% of Warrnambool households earning less than $599 per week, which is not sufficient to permit the repayment of a loan on an average 3-bedroom house, home ownership is now beyond the reach of many households, particularly the younger generation.
Approaches to addressing the issue have in the past centred around the supply of land, facilitation of development approvals, reduction in infrastructure costs and reduction in lot sizes. Whilst the potential supply of lots has increased through the re-subdivision of lots created during the development of new estates, this has done little to reduce their cost. It must be recognised that housing as a form of investment and superannuation are also key factors driving the market. It will therefore be important for this Strategy to efficiently utilise existing infrastructure services which will result in cost savings that can be passed on to the consumer (p24).’
In Council’s view there are two aspects to affordable housing; the first is the provision of affordable housing in the context of public housing/community housing; and the second is to ensure that there is sufficient vacant zoned land in appropriate locations so that any price distortions that result from inadequate land supply are avoided. This consideration also relates to the most efficient use of infrastructure and the opportunity that this provides to minimise development costs that are inevitably passed on to purchasers.
In relation to the provision of public housing, this is clearly beyond the scope of the WPS (and Amendment C43). Nevertheless, Council does play an important role in the provision of such housing and it has an Affordable Housing Program (Community Housing Program) which comprises 13 dwellings (mix of 2 & 3 bedroom) scattered throughout the City. The houses are tenanted by single parent families, with subsidised rents and the program has been operating for 20 years. Last year an Affordable Housing Forum was held in Warrnambool and as a result, Council has had meetings with a housing provider with a view to extending the program.
In relation to the provision of residential land, the WPS (and Amendment C43) specifically acknowledge the importance of affordable housing and seek to assist this outcome through the introduction of a comprehensive framework for long term residential development.
Importantly, the WPS already identifies the need for affordable housing at Clause 11.03-6 of the SPPF (Social needs):
Planning is to recognise social needs by providing land for a range of accessible community resources, such as affordable housing, places of employment, open space, and education, cultural, health and community support (mental, aged, disabled, youth and family services) facilities.
Similarly, strategies at Clause 12.01-2 and 12.06-2 (Metropolitan development) also reinforce the need for affordable housing.
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In support of these existing references, Clause 21.05-2 of Amendment C43 includes the following objectives: • To provide opportunities for affordable housing; and • To provide a diverse housing stock to meet the range of household needs. Amendment C43 seeks to achieve these objectives by implementing the WLUS, which will provide the long term framework for residential development within the municipality and ensure that there is an adequate vacant land supply in appropriate locations. This is the most important and relevant action that the WPS can take in relation to housing affordability. It will ensure that there is choice and price competition in the market and that residential development will occur in areas that have cost effective infrastructure. In addition, the proposed MSS highlights (as does the SPPF) the desirability of providing housing that meets the diverse needs of the community.
Council is satisfied that the existing references to affordable housing in the WPS are adequate, and that Amendment C43 will assist in achieving its ‘affordability’ objectives.’
So far as Mr Drury’s submission was concerned, the WCC response was to indicate that there was an awareness of the need for appropriate urban land release but that strategic work was appropriate in determining the location, rates and timing of land release. It was also said that there is an obligation to comply with the EPA Septic Tanks Code of Practice which is an Incorporated Document of the WPS.
Panel position
So far as Mr Drury is concerned, the Panel agrees with the Planning Authority response.
The Panel would further add that the submitter is perhaps looking at the housing cost issue too narrowly – merely as the direct cost of a house and land package to a purchaser. This is the most obvious cost of housing. There are other hidden costs of new housing which are external to the direct purchase cost and are not reflected in it. Those costs are borne by the community through the need for public expenditure on physical and social infrastructure etc. It is achieving a balance of private and public costs which informs town planning decisions about the release of ‘greenfields’ land.
So far as the complexity of planning controls is concerned, the Panel would observe that there needs to be constant vigilance to ensure planning controls take their most simple and understandable form. The land use system regulated by planning is, however, the product of a complex and changing interactive system of social, economic and environmental forces. Planning controls must necessarily be sophisticated to deal with it.
The need for action on the provision of affordable housing in Warrnambool was convincingly put by the housing agency submitters at the hearing. A number of examples illustrated the difficulties facing charities and housing groups in providing emergency and longer term accommodation for people in need, including low income earners, migrants, and indigenous groups. The social impacts of the housing shortage were also described to the Panel. The current waiting list for State housing
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 37 accommodation in Warrnambool is some 400 persons, well above the State average. Waiting time for a 1 bedroom flat is 48 months.
The Panel was also persuaded that with the increasing popularity of the Warrnambool area as a tourist and holiday destination, low cost housing options are becoming increasingly scarce - as boarding houses and caravan parks are redeveloped to meet this demand. Tourist accommodation offers a higher rental return than longer term accommodation for low income earners.
Mr Murfett provided details of WCC’s housing initiatives being a holding of 13 dwellings that are rented to low income earners, but it was acknowledged that there had been nothing done for some years to increase this stock.
The Panel is agrees with the position put on behalf of WCC that there are two broad approaches to the provision of affordable housing: addressing the issue strategically and direct involvement.
While this Panel is by no means expert in issues of affordable housing and is conscious that solutions to affordable housing shortages are complex, it would appear to the Panel that ongoing purchase of properties for rental may not be the most cost effective way to meet the demand.
In terms of strategic solutions, many of them – like the establishment of a Housing Association – lie beyond the ambit of planning scheme administration and review. They are matters which are properly the responsibility of other disciplines or departments of a council. The Panel would nevertheless observe that an association would appear to offer the benefit of sharing of resources and ideas for addressing this serious community problem.
Some strategic solutions to affordable housing shortages do fall within the ambit of planning, however. They include the provision of an adequate land supply - to prevent unnecessary land price increases - and policies to enable the cost effective construction of housing including by redevelopment to higher densities. These are the traditional planning approaches to the provision of housing. They can also be supplemented by other more direct planning approaches. Reference was made, for example, to the programs of ‘inclusionary zoning’ adopted elsewhere, including in South Australia in recent times.
There is a view that innovative planning approaches to affordable housing provision is something best managed at State rather than local government level.
The Panel is of the view, however, that the affordable housing shortage in Warrnambool is so acute that it is appropriate that investigation into all possible means to assist with an improved supply should be investigated - including by Council’s own planning department.
Panel recommendations The MSS references to the enhanced provision of affordable housing are supported as far as they go. The Panel agrees with the submitters that it would be appropriate to give greater recognition in the MSS to the affordable housing problem in Warrnambool in Clauses 21.01 and 21.02 and to seeking solutions in 21.05.
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It is also recommended that WCC planning department undertake research into other planning techniques to assist in achieving the aim of enhanced provision of affordable housing such as ‘inclusionary zoning’ with a view to introducing them through scheme or other requirements.
3.3.4 THE AMOUNT AND LOCATION OF RURAL RESIDENTIAL LAND Submission No 2 J P & B J Monigatti Supports the adoption of the MSS and the Warrnambool Land Use Strategy, Sept 2004 and its implementation in the North of the Merri River Area. Submission No 3 James Denis Ryan Extension of urban growth boundary. Recommends low density housing with a coastal reserve for the area of Hopkins Point Road. Would like urban growth boundary extended along Hopkins Point Road to include property. Submission No 8 Arnold Brian Requests that his land be rezoned Low Density Residential rather than Rural Living. All land south of the Merri River in Woodford be zoned Low Density Residential with a Rural Living Zone buffer to farmland on the north side of the river. Reduce the overall extent of Rural Living Zone land available in Woodford. Request for a zoning which would allow an application to be made for subdivision planned for 20 years and allowed under previous Rural Residential zoning.
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Submission No 23 R H Selway Timing of implementation of Land Use Strategy for land north of the Merri River. Problems with the rural use of land north of Merri River due to interface issues with encroaching residential development. Supports change in use to residential in this area.
Would like timeframes for rezoning to be brought forward.
Speakers
Mr Monigatti, Mr Selway and Mr Brian attended the hearing and spoke and tendered written submissions including plans, photographs etc.
Planning authority response to these submissions
Mr Monigatti’s and Mr Selway’s submissions were noted by Council and forwarded to the Panel for its information. The Panel was advised that rezonings are to take place in the northern corridor as early as 2008.
Mr Ryan’s submission was not supported by Council and was referred to the Panel for consideration. It was submitted that it was premature to revise the location of the urban growth boundary in this location – which was appropriately defined.
Mr Brian’s submission was not supported by Council and was referred to the Panel for consideration. It was noted that further strategic planning for the Bushfield and Woodford area is planned and the issue of appropriate zoning could be addressed then.
Panel position
Both Mr Monigatti and Mr Selway highlighted the difficulties faced by farming enterprises on the fringes of urban areas, including dog attacks, trespass, litter etc.
Both supported the Planning Authority’s position in relation to the Urban growth boundary and asked that corridor rezonings proceed as soon as possible. The Panel supports that approach.
Mr Brian’s submission identified historic anomalies that have created a zoning arrangement in the Woodford area that is somewhat anomalous in light of existing patterns of subdivision.
He suggested that modern techniques for effluent treatment and land capability should be taken into account in a review of zonings in the area.
Mr Brian also raised the issue of the overall amount of land in rural use now zoned for residential use on the fringes of the City.
The Panel agrees with this submitter about the need for an overall review of the location and amount of rural residential land in the City especially around Bushfield, Woodford and near Lakes Road.
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The Panel supports the structure planning exercise proposed for the townships of Bushfield and Woodford. It should incorporate the results of a review of the extent of the areas zoned Rural Living and Low Density Residential.
Panel recommendation
Council should undertake a review of the Rural Living and Low Density Residential Zones throughout the City, their extent and relevance particularly with regard to Bushfield and Woodford areas together with the isolated area of development on Rodgers Road.
3.3.5 STAGING AND LEAP-FROGGING OF PARTICULAR RESIDENTIAL/COMMERCIAL DEVELOPMENTS Submission No 11 Urbanomics on behalf of Leon Condon Requests that land on the corner of Wollaston Road and Caramut Road, Warrnambool be identified for Agribusiness development. Identify in the MSS the potential for land north of Wollaston Road and east of Caramut Road (north of the Merri River) to service the rural economy through the development of an Agricultural Business Park. Submission No 12 St. Joseph’s Parish Requests land on the south-east corner of Wangoom Road and the Hopkins Highway be identified for limited retail/non retail commercial uses, community use (primary school) and residential development. Lack of precision in exhibited MSS regarding community node and land use. Requests for MSS to provide for: - Highway frontage portion of land to be used for specialised development, possibly a Business Park type development and non-retail commercial uses; - Limited retailing to service the needs of the surrounding population (Neighbourhood Centre/Village); - A site for a future primary school (if required); and - Residential development that connects with adjacent land to the east and existing development (including King’s College to the south). Submission No 14 Urbanomics on behalf of Motang Pty Ltd Support for the MSS. Agrees with 4-5 dwellings per hectare and environmental considerations applying to land in Hopkins Point Road.
Submission No 15 Regional Innovation on behalf of the owners of the ‘Astbury Land’ Supports the adoption of the exhibited MSS, with particular reference to the 4-5 dwellings per hectare in the Hopkins Point Road area, large areas of open space, substantial site revegetation and reversion of the primary dune to public ownership.
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Submission No 19 Merran J Adams Suggests that the entire area bounded by Horne Road, Boiling Down Road, Wangoom Road & Aberline Road should be included within the urban growth boundary as part of the North Eastern Growth corridor.
Requests that sensitive residential development be undertaken simultaneously with the development of the Francis Tozer Memorial Reserve.
Speakers
Mr B Howard (Urbanomics) spoke on behalf of Mr L Condon and Motang Pty Ltd, Mr G Shanley and Mr B Howard on behalf of St Joseph’s Parish, Mr T Lindsay (Regional Innovation) on behalf of ‘Astbury’ and Ms M Adams on her own behalf. They tendered written submissions including plans, photographs etc.
Planning authority response to submissions Urbanomics submission on behalf of Mr Condon is not supported and is referred to the Panel for consideration. The Parish’s submission is not supported and the submission be forwarded to the consultants preparing the structure plan for the North East growth area, and to the Panel for its consideration. Urbanomics on behalf of Motang Pty Ltd submission is noted and forwarded to the Panel for its information. No action is required. Regional Innovations submission on behalf of the owners of the ‘Astbury Land’ is noted and forwarded to the Panel for its information. No action is required.
Ms Adams’ submission in relation to the Tozer Reserve was not supported by Council and referred to the Panel for consideration.
Panel position
Both the Urbanomics submission for Mr Condon and St Joseph’s Parish submission call for industrial/commercial developments to be located outside the proposed urban growth boundary. Both parties maintained they were not proposing ribbon development but rather self-contained developments that could successfully exist beyond the already developed areas in the northern growth area but would service the immediate area.
Neither submission is supported by the Panel in that they are both considered to be premature, and have the potential to fragment the existing industrial and commercial areas in the northern growth corridor and cause leapfrogging in the roll-out of infrastructure services provision by WCC.
Both the Motang and the Astbury landowners are in support of the proposed wording of the MSS. Both land parcels are located within the urban growth boundary in the Logans Beach/Hopkins River area. Further subdivision is proposed by the owners.
The Motang land was first subdivided in the early 1980s in the form of a cluster subdivision and the Panel was advised that future development will occur in a similar form, using onsite stormwater retention with building envelopes below the ridge line and varying densities. The Panel notes that the first stages with the existing
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 42 dwellings are well set in the extensively landscaped area and are attractive without impacting on the Hopkins River environs.
In the case of the Astbury land it is noted that the owners have had extensive consultations with DSE and are proposing to create a 4 ha foreshore reserve to extend public access to the east from the Council-owned whale viewing area at Logans Beach. The Panel is supportive of their concept of siting future dwellings behind the primary dune formation in a cluster formation and subject to design guidelines. This should avoid a repetition of some of the more unfortunate dune top developments in that area.
Both of these forms of development reflect a sensitive response to the special environment in which they are situated.
Ms Adams’ submission focussed on the Francis Tozer Reserve located east of the intersection of Three Chain Road and Dixons Lane. She seeks stronger recognition for the reserve in the MSS. This area is held in trust for the community. It contains significant remnant grassland vegetation and is used as an education resource for schools and the general public. Her submission was supported by the Environmental Unit of WCC.
This aspect of Ms Adams’ submission is supported by the Panel.
We do not, however, support the balance of Ms Adams’ submission in relation to closer development surrounding the reserve as again it is considered to be premature. The Panel supports the Planning Authority view that the 15 year time frame for development in the MSS is satisfactory subject to regular review.
Recommendation
Neither Mr Condon’s nor St Joseph’s Parish submission is supported. These proposals should be reviewed at some point in the future as part of review of the growth potential and timing of development of the Northern Growth Corridor.
The Panel gives in principle support to both the ‘Motang’ and ‘Astbury’ approaches to development in sensitive environments.
The status of the Francis Tozer Reserve as a community education resource should be given greater recognition in the MSS as suggested by Ms Adams and the Environment Unit of WCC.
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3.3.6 DRAFTING ISSUES Submission No 28 Dr James Tait Critical of process of preparation of the MSS. Lack of community consultation. Many of Council’s ‘adopted policies’ are now out of date. Suggests numerous detailed changes to structure and wording.
Submission No 34 Department of Sustainability and Environment
The DSE submission included detailed drafting changes. They withdrew that submission, however, after agreement from Council to incorporate most of the changes nominated.
For the record, a table setting out the DSE’s requested changes and the Planning Authority response is set out in Appendix C of this Panel Report.
Presentation by Dr Tait at hearing
Dr J Tait attended the hearing and spoke and tendered a written submission.
Note: Due to the length and complexity of the issues raised, Dr Tait’s submission is attached in Appendix C together with Council’s itemised response.
Planning authority response to submissions Council accepts the suggestions of many of [Dr Tait’s]… submissions and proposes a number of changes to the amendment. Council believes that the supported changes will improve the currency and performance of the LPPF and seeks the Panel’s support for them. See ‘Appendix C’ section for Councils detailed response to Dr Tait’s submission.
Panel position
Dr Tait is to be commended for the detailed submission placed before the Panel. The amendments proposed and supported by Council are also supported by the Panel as in the Panel’s view they clarify and expand its legibility.
Recommendations
Dr Tait’s submission in as far as it is supported by Council is agreed to by the Panel. Details are set out in Appendix C.
The Panel also notes the changes to the MSS which have been adopted in response to the now-withdrawn DSE submission.
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3.3.7 OTHER ISSUES
Environment
Submission No 1 Susanne Thulin Supports MSS in principle. Environmental/sustainable housing issues. Requests appropriate establishment of green corridors and parkland between and within each future extension of Warrnambool’s residential areas. Requests that one or more new residential areas be targeted to be developed using state of the art sustainability concepts (i.e. further measures than are currently required by planning and building regulations), perhaps in the form of one or more ‘eco villages’. Submission No 4 Shirley Duffield Recommends numbering items for ease of commenting rather than using dot points. Also recommends changed content as follows: - Clause 21.06-3 dot point 12 -‘To achieve net gain in native vegetation under the Victorian Native Vegetation Framework should be deleted; - Change wording of Clause 21.06-4 dot point 2 from ‘Discourage the clearing of remnant vegetation……..’ to ‘Protect remnant vegetation……….’; - Clause 21.06-5 should be altered to remove Council officer discretion when assessing planning applications; - No upgrading of pedestrian access through the middle of Lake Pertobe as it will threaten water birds and wetland habitat; - That encouraging large masses of visitors to areas of natural environment is inappropriate as it destroys that environment which should be left as it is; - In Clause 21.06-4 dot point 2 change wording ‘Discourage the clearing of remnant vegetation……..’ to ‘Protect remnant vegetation……….’; and - In Clause 21.06-4 move dot points 7, 8, 9, 10 & 11 to Coastal Landscape.
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Submission No 13 Western Coastal Board The Board is generally supportive of the high level references to the Victorian Coastal Strategy within the MSS but has the following concerns. - Requests revised MSS strengthen the protection of the coastal landscape; - Clause 22.01-2 relating to Logans Beach fails to contain references to the Victorian Coastal Strategy and its policies of coastal protection as a major priority; - Clause 22.01-2 does not provide sufficient clarity with regard to the township boundary for residential development along the coast. The Victorian Coastal Strategy’s principle that linear spread of residential developments along the Victorian coast are not encouraged should be expressed in the MSS; - Lack of public reserve along coast has resulted in inappropriate development within the coastal dune system. Significant Landscape Overlay has not been successful in protecting the coastal landscape around Logans Beach; - Inclusion of the South West Regional Coastal Action Plan in the MSS; and - Change wording under Clause 21.06-5 Environment Implementation - Other Actions, to ‘Consult with the Western Coastal Board concerning development on the coast in accordance with its statutory role to work with councils to develop and implement strategic solutions to matters affecting the conservation and use of the region.’. Submission No 22 Environment Unit, WCC Francis Tozer Reserve, Wangoom Road should be referred to in the MSS as significant for its flora and fauna values (see Ms Adams’ submission above). Submission No 25 Glenelg Hopkins Catchment Management Authority Supports MSS. Supportive of the new MSS, especially the inclusion of references to the Regional Catchment Management Strategy. Submission No 30 Anne Yule Logans Beach area. Concern regarding proposed strategies dealing with significant landscapes in the Logans Beach area will not be followed through. Seeks tighter control through new overlays. Submission No 32 Joy & Peter Carrucan The submitter is generally supportive of the MSS, however raises the following issues: - Use of indigenous plants should be mandatory along waterways and wetlands; - Clearing of all remnant vegetation and habitat corridors should be banned; - Wetlands should be retained and used as a filter of stormwater, and to mitigate floodwaters; - Supports greenbelt between Warrnambool and outlying townships; - Retail development in Woodford not needed; - Support improvements in public transport; - Bores should be restricted and monitored; - Water re-use should be encouraged; - Landfill in floodplains should be banned; - 30 metre wide public reserve either side of waterways; and - Traffic impacts on east Warrnambool regarding possible re-direction of Great Ocean Road.
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Submission No 35 Regional Innovation Requests clarification of policy application to the Coastal/Hopkins River Environment and Logans Beach areas. Detailed suggestions to clarify and strengthen strategic objectives and strategies particularly as relate to the Hopkins River/Coastal area.
Speakers
Mrs S Duffield and Mr Longmore for the Western Coastal Board attended the hearing. They spoke and tendered written submissions including plans, photographs etc.
Planning Authority response to submissions Ms Thulin’s submission is noted and forwarded to the Panel for its information. No action is required. Ms Duffield’s submission is noted and forwarded to the Panel for consideration. Council’s response and recommended changes are outlined in Appendix C of the Panel report. The Western Coastal Board’s submission is noted and referred to the Panel for consideration. Council’s response and recommended changes are outlined in the Appendix C of the Panel report. The Environment Unit of WCC submission is noted and referred to the Panel for consideration. Council will investigate the future planning controls for the Francis Tozer Reserve. The Glenelg Hopkins Catchment Management Authority Submission is noted and forwarded to the Panel for its information. No action is required. Ms Yule’s submission is noted and referred to the Panel for its consideration.
The Carrucans’ submission is noted and forwarded to the Panel for consideration. Council’s response and recommended changes are outlined in Appendix C of the Panel report.
There may be scope to restructure or reformat the MSS to incorporate some of the Regional Innovation suggested changes.
DSE withdrew their submission following discussions with WCC on the understanding that its concerns would be incorporated into the MSS as recommended to the Panel.
Panel position
The submissions from Ms Thulin and the Glenelg Hopkins Catchment Management Authority and the Planning Authority response are noted by the Panel.
The CMA was very supportive of the amendment and requested no action. None is required.
Ms Thulin’s requests for green breaks in corridor development and demonstration sustainable housing projects are noted. The latter is a useful idea for the Planning
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Authority to consider but falls outside the current exercise. In the Panel’s view green breaks will be able to be considered as structure plans unfold.
The Western Coastal Board made reference to the Landscape Assessment Tool Kit (3 Volumes) in relation to future development at Logans Beach and are generally happy with the proposed wording in the MSS especially Clause 21.05 and Clause 21.06-4 dealing with strategies for development in this area. It is noted that the Motang and Astbury proposals are in line with this.
The Panel has reviewed the detailed response given by the Planning Authority to the drafting changes requested by the Coastal Board and supports the Planning Authority view as reflected in Appendix C. This includes the incorporation in the MSS of references to the South West Regional Coastal Action Plan and a new implementation sub-clause in Clause 21.06-5 referring to consultation with the Coastal Board.
The net gain of native vegetation is the main theme of Ms Duffield’s submission. To the extent that her submission is supported by the Planning Authority, the Panel also supports her submission. Details are included in Appendix C.
The Panel has responded on the Tozer Reserve issues in its comments on Ms Adams submissions above.
The Planning Authority maintains that it has sufficient controls to ensure the protection of Logans Beach as raised by Ms Yule in her submission. The Panel agrees with this position but also notes that her submission might be again become relevant when the remaining local policies are revised into overlays under the sequel amendment.
The Panel has reviewed the detailed comments by Regional Innovation and the Carrucans and WCC’s responses (all included in Appendix C of this report), and supports the response by the Planning Authority. The withdrawal of the DSE submission and the reasons given for it have been noted by the Panel. Panel recommendations The Panel notes Ms Thulin’s and Ms Yule’s submissions but proposes that no action be taken as part of the MSS review. The Planning Authority response to the submissions by Ms Duffield, the Western Coastal Board, Regional Innovation and the Carrucans is supported. The details are set out in Appendix C. Submission No 5 John F Gleeson Does not support extension of Balmoral Road past Kings College. Traffic congestion concerns regarding the extension of Balmoral Road north to Wangoom Road passing Kings College. Suggests widening of Wangoom Road from the Hopkins Highway east to Aberline Road. Suggests using the Aberline Road/Wangoom Road route to accommodate heavy articulated traffic.
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Submission No 7 Bernard K Farley Redwood Manor Motel Apartments Commercial premises are developing in Residential 1 Zone in CAD. The submitter seeks to have the MSS recognise that the blocks in Koroit Street and Lava Street (between Henna and Fairy Streets) are gradually being converted from residential to commercial use. Submission No 9 Gary Cooper Drafting Request for Council to abandon Amendment C43 Clause 21 is too broad. Concerns about Clause 22 – Local Planning Policies: - Is full of contradictions, leaving policies open to interpretation by officers; - Logans Beach has been poorly managed since the 1980s; - Wording too discretionary such as ‘shall be sensitive’ and ‘proper protection.’ Concerned with the large sizes of subdivision allotments; - The lack of subdivision opportunities and commercial development on Hopkins Point Road - does not support creating Hopkins Point Road as a major Gateway to the City; - South Warrnambool Village precincts are too discretionary, but prescribe fence heights & types; - Warrnambool Foreshore Precinct policies out of date and contradictory with 4 storey development taking place in an area identified as one of most sensitive in Warrnambool; - Heritage trees require permit for pruning, lopping, etc. Concerns with regard to maintenance due to storm damage; - Housing provisions loosely worded, leaving it open for interpretation by officers; - Amendment will further complicate the planning process and will not result in any improvement to the existing time frames; and - Overlooking from developments recently approved by VCAT in the central urban area.
Submission No 24 Warrnambool Golf Club The submitter requests the inclusion of a 1 km buffer zone excluding residential development around the rendering plant in Swinton Street.
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Submission No 36 R Cummins Concerns about development approval processes and VCAT decisions regarding overlooking. General development issues including car access, cross overs, parking on nature strips, tree removal etc
Speakers
Mr B Howard on behalf of Warrnambool Golf Club and Mr R Cummins spoke at the hearing.
Planning Authority response to submissions
Mr Gleeson’s submission is noted and will be forwarded to the consultants preparing the structure plan for the North East Growth Corridor. Mr Farley's submission is not supported and is referred to the Panel for consideration. The proposal is contradictory to the MSS which recognises the need to develop residential accommodation above or in conjunction with commercially zoned properties with in the City Centre.
Mr Cooper's submission is not supported and is referred to the Panel for consideration.
It is proposed to modify the references to the Warrnambool Knackery in response to the submission by the Warrnambool Golf Club.
Mr Cummins submission is not relevant to the MSS, the issues more relevant to permit application approvals processes.
Panel position
The Panel agrees with Councils position regarding Mr Gleeson’s submission and considers it appropriate to refer it to the consultants preparing the structure plan for the North East Growth Corridor together with the other submissions dealing with this area.
Mr Farley’s submission relating to residential development within the urban centre is noted by the Panel; however it supports WCC’s position with regard to encouraging residential uses in the commercial centre of the City. This helps provide housing diversity and choice as discussed earlier in this report.
Mr Cooper’s position that the MSS should not proceed due to Clause 21 being too broad is not supported by either the Planning Authority or the Panel.
It is in the nature of MSSs that they contain broad objectives as well as more particular strategies and implementation measures. The detail referred to in Clause 22 in many instances is the outcome of strategic studies involving community consultation and involvement of planning experts. Some of the remaining local policy content will be reviewed further when the later amendment converting local policies to scheme requirements is processed.
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Concerning planning officers exercising discretion, the Panel would comment that it will always be the case that some of the content of a planning scheme will be non- prescriptive and the exercise of discretion will be required. The ever changing nature of land use and development would foil any attempt to be otherwise. The Panel supports the Council position in relation to the knackery at Sinclair Street as proposed by the Warrnambool Golf Club and considers that the buffer distances should be defined and mention made of the facility in Clause 21.08-01. A name change to ‘Rendering Plant’ may be more appropriate modern usage. Mr Cummins submission is not considered relevant to the review of the MSS and the issues raised generally relate to the administration of the scheme and to planning permit application processes in particular. Recommendations Mr Gleeson’s submission should be referred to the consultants preparing the structure plan for the North East Growth Corridor. The knackery at Sinclair Street should be referred to in Clause 21.08.01 together with the already included Nestle (Fonterra) site and the sale yards. We suggest that it be renamed ‘Rendering Plant’.
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4. RECOMMENDATIONS
RECOMMENDATION TO PROCEED WITH AMENDMENT C43
For the reasons set out in this report, the Panel makes the following primary recommendation to the planning authority:
Amendment C43 to the Warrnambool Planning Scheme Planning Scheme should be adopted subject to the following particular recommended changes and actions.
PARTICULAR RECOMMENDATIONS
Allansford
• The Panel recommends that the Planning Authority proceeds urgently with the preparation of a structure plan for the industrial park at Allansford and the adjoining residential areas. The siting of any rail siding and associated acoustic barriers should be considered as a key component of the plan;
• The Panel supports the emphasis in the Expressions of Interest document for preparation of the structure plan upon communication with the residents;
• The Panel believes that this aim would be assisted by the establishment of a project steering committee which should include representatives of the local community;
• Consideration should be given to the appropriate zoning of the land at the fringe of the Allansford township upon which the submitters reside;
• The Panel also recommends that the required amenity buffers between industry and dwellings should be provided within the industrial land itself. If this arrangement requires more land than is has already been purchased, further land may be need to be obtained.
Eastern Entry
• The Panel recommends that as a matter of urgency work be commenced on an Eastern Entry Structure Plan for the area in the vicinity of the Gateway Plaza Centre with the aim of developing a cohesive activity precinct of an urban design standard commensurate with its location at the main gateway to the City. Issues to be addressed in the study would include access to and within the precinct, urban design issues such as building bulk and design, the creation of attractive public spaces, advertising controls, the future use of the Deakin Campus land, planning for office space and various types of retailing.
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• The wording changes to the MSS put forward by Mr Biacsi on behalf of AMP in relation to retailing matters are supported subject to the qualifications expressed in Section 3.3.2;
• The EAPSP mapping errors need to be corrected in discussion between Council and AMP;
• The Panel supports an urgent review of the Retail Strategy to enable retailing floor space figures to be reintroduced in the WPS and the interim wording now proposed for the MSS removed. This project must include consideration of the future use of the Fletcher Jones site.
Affordable housing • The MSS references to the enhanced provision of affordable housing are supported as far as they go. The Panel agrees with the submitters that it would be appropriate to give greater recognition in the MSS to the affordable housing problem in Warrnambool in Clauses 21.01 and 21.02 and to seeking solutions in 21.05;
• It is also recommended that WCC planning department undertake research into other planning techniques to assist in achieving the aim of enhanced provision of affordable housing such as ‘inclusionary zoning’ with a view to introducing them through scheme or other requirements.
Rural residential zoning
• Council should undertake a review of the Rural Living and Low Density Residential Zones throughout the City, their extent and relevance particularly with regard to Bushfield and Woodford areas together with the isolated area of development on Rodgers Road.
Specific outlying developments and sites
• Mr Condon’s and the St Joseph’s Parish proposals should be reviewed at some point in the future as part of review of the growth potential and timing of development of the Northern Growth Corridor;
• The Panel gives in principle support to both the ‘Motang’ and ‘Astbury’ approaches to development in sensitive environments;
• The status of the Francis Tozer Reserve as a community education resource should be given greater recognition in the MSS as suggested by Ms Adams and the Environment Unit of WCC.
Drafting
• Dr Tait’s submission in as far as it is supported by Council is agreed to by the Panel. Details are set out in Appendix C;
• The Panel also notes the changes to the MSS which have been adopted in response to the now-withdrawn DSE submission.
Environment
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• The Planning Authority response to the submissions by Ms Duffield, the Western Coastal Board, Regional Innovation and the Carrucans is supported. The details are set out in Appendix C. Other issues • Mr Gleeson’s submission should be referred to the consultants preparing the structure plan for the North East Growth Corridor; • The knackery at Sinclair Street should be referred to in Clause 21.08.01 together with the already included Nestle (Fonterra) site and the sale yards. We suggest that it be renamed ‘Rendering Plant’.
FUTURE WORK PRIORITIES
This Panel report not only confirms some of the further strategic planning work proposed to be undertaken by the Planning Authority but makes a number of recommendations concerning further work.
The Panel is aware that Council financial and staff resources to undertake planning studies and reviews can be limited. The Panel provides a view as to the priorities for further strategic work for the assistance of the Planning Authority.
The Panel considers the priorities for the further work identified by or referred to in the Panel report are in order of priority:
• Structure Planning for Allansford;
• Review of retail and office floor space and update of Retail Strategy;
• Research into legislative, policy and financial mechanisms including those available through planning actions to improve the supply of affordable housing in the City;
• Development of an Eastern Entry Structure Plan extending to the Deakin University land addressing urban design, access and land use issues; and
• Review of the extent and location of low density living and rural residential areas.
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 54 APPENDICES
A. THE PANEL PROCESS ...... 55 THE PANEL ...... 55 HEARINGS, DIRECTIONS AND INSPECTIONS ...... 55 SUBMISSIONS...... 56
B. STRATEGIC ASSESSMENT GUIDELINES...... 60
C. COUNCIL RESPONSE TO DETAILED SUBMISSIONS...... 63
D. ANNOTATED MSS BEFORE THE PANEL...... 80
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A. THE PANEL PROCESS
THE PANEL
The Panel was appointed under delegation on the 20 January 2006 pursuant to Sections 153 and 155 of the Planning and Environment Act 1987 to hear and consider submissions in respect of Amendment C43. The amendment is an LPPF amendment - essentially an MSS amendment with only limited modifications to the content of existing local policies. It does not include any zoning or overlay changes arising from the modified LPPF as it is intended that subsequent amendments to the WPS will implement these statutory outcomes.
The Planning Authority is Warrnambool City Council who was represented at the Panel hearing by its consultants - Mr John Keaney and Mr Michael Kirsch - together with WCC’s Planner - Ms Julie Kearney.
Warrnambool City Council is also the proponent for the amendment.
The Panel comprises: Chairperson: Ms Jennifer Moles Member: Ms Elizabeth Bensz
HEARINGS, DIRECTIONS AND INSPECTIONS
A directions hearing was held on 9 March 2006 at Warrnambool City Council Chambers. A number of directions were made relating to: the provision of expert witness reports, the availability of strategic reports to the parties and the provision of facilities in support of the hearing; and the material relating to the investigations in the Allansford industrial area which was directed to be presented by way of expert evidence while the material in relation to the WLUS, it was indicated, might be presented by way of submission. At the hearing the WLUS material was in fact presented as evidence and Mr Trevor Budge, the witness, was made available for cross examination.
All the Panel directions were complied with.
The Panel hearing was held on April 10, April 11 and April 12, 2006 at Warrnambool City Council Chambers in Warrnambool.
The Panel members inspected the site and surrounding areas:
• unaccompanied inspections were made of Allansford, Woodford, the eastern entry to the City, Deakin University on the Princes Highway, and Logans Beach (following the directions hearing on the 9 March 2006);
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• on the day prior to commencement of the hearings, the Panel inspected the Fonterra factory locality, the rendering works locality and the commercial areas of the City generally; and
• at the conclusion of the second day of the hearing, accompanied inspections were made to Dennington North, Allansford industrial area and adjoining rural areas, Woollaston Road, Wangoon Road, Merri River and the Francis Tozer Reserve.
SUBMISSIONS
The Panel has considered all written and oral submissions, evidence and other material presented to it in connection with this matter.
A list of all written submissions to Amendment 43 is included in Table A.1 below.
Table A.1 Submitter Organisation (if any) Mr J F Gleeson Ms S Thulin Mr J D Ryan Mr B K Farley Redwood Manor Motel Apartments Mr P & Mrs E Evans Mr G Cooper Gary Cooper Drafting Ms J Lilburn Western Coastal Board Mr D Ryan Community Connections Mr B Earnshaw South West Housing Advisory Group Urbanomics Mr L Condon Urbanomics Motang Pty Ltd Ms C McFarlane Deakin University Regional Innovation Astbury Family Restifa and Partners Pty Ltd AMP Capital Investors Ms M Adams Barnes Planning Pty Ltd Noseda Retail Pty Ltd Ms S Duffield Mr D Spedding Deakin University Ms A Yule Mrs J and Mr P Carrucan Mr J and Mrs B Monigatti Mr R and Mrs J Selway Mr T and Mrs D Anderton
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Submitter Organisation (if any) Mrs P and Mr G Edge Mrs A and Mr K Hards Ms K McLaren Mr N Longmore South West Community Legal Centre Mr P Gray Environment Unit, Warrnambool City Council Mr A Brian Mr G Shanley St Joseph’s Parish P J Bastian Warrnambool Golf Club Mr C Dunkley Glenelg Hopkins Catchment Management Authority Dr J Tait Mr R Macaulay Department of Sustainability and Environment * Mr G McLeod Mr R Cummins Mr C Drury
* DSE subsequently withdrew their submission following discussions with the Planning Authority that led to changes to the proposed wording of the MSS that satisfied both parties.
A copy of an annotated MSS is attached at Appendix D.
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The Panel heard the parties listed in Table A.2 below.
Table A.2 Submitter Represented By Warrnambool City Council Mr John Keaney and Mr Michael Kirsch instructed by Ms Julie Kearney, Planner, Warrnambool City Council. Mr Keaney called the following witnesses: - Mr Trevor Budge Planner of Parsons Brinkerhoff - Mr Tim Nott – Economist - Mr Murray Murfett Director, Amenity Services, WCC. Mr P & Mrs E Evans Western Coastal Board Mr Neil Longmore, Solicitor. South West Community Legal Mr Neil Longmore Centre South Western Housing Advisory Mr Neil Longmore, Solicitor Group Community Connections Mr Gary Lucas and Mr David Ryan assisted by Mr Lindsay Stowe, Salvation Army Housing Service. Mr L Condon Mr Brendon Howard, Urbanomics Motang Pty Ltd Mr Brendon Howard, Urbanomics Deakin University Mr Andrew Biacsi, Contour Consultants and Ms C McFarlane. AMP Investments Pty Ltd Ms Natalie Bannister, Gadens Solicitors. She called the following witness: - Mr Andrew Biacsi Planner, Contour Consultants. Ms M Adams Ms S Duffield Mr J and Mrs B Monigatti Mr R and Mrs J Selway Mr T and Mrs Anderton Mrs P and Mr G Edge Mrs A and Mr K Hards Ms K McLaren
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Submitter Represented By Astbury Family Mr Thomas Lindsay, Regional Innovation Mr A Brian St Joseph’s Parish Mr Gerard Shanley and Mr Brendon Howard, Urbanomics Warrnambool Golf Club Mr Brendon Howard Dr J Tait
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B. STRATEGIC ASSESSMENT GUIDELINES
Table B.1 Strategic Issue Response or Reference
Is an amendment necessary? The amendment is required to: • implement the findings of the Three Year MSS Review; • incorporate the further strategic work and policy development undertaken by Council; and • implement relevant strategies and policies prepared by other agencies. Amendment C43 represents the first major review and update of the Warrnambool LPPF and is based on a comprehensive suite of new strategies, polices and investigations. The revised LPPF will provide the basis for further amendments that will implement the MSS strategies through consequential zoning, overlay and schedule changes. It also establishes Council’s ongoing ‘further strategic work’ program. Does the amendment comply The amendment implements the objectives of with the requirements of the planning in Victoria set out at section 4 of the Act Planning & Environment by introducing a revised MSS that implements a Act? significant body of further strategic work undertaken by Council and other agencies since the approval of the current planning scheme. This further work was developed within the objectives and context provided by the Act. The environmental performance of the planning scheme will be enhanced through the implementation of various environmental strategies such as the Glenelg Hopkins Regional Catchment Strategy. The social and economic performance of the planning scheme will be enhanced by the implementation of the various residential, industrial and commercial strategies discussed in Section 4. Specifically, the MSS provides for the future residential, industrial and commercial needs of the municipality and provides a detailed implementation plan to ensure that an appropriate supply of land is available in appropriate locations.
Does the amendment support Amendment C43 is consistent with and supports the
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Strategic Issue Response or Reference or implement the SPPF? implementation of the SPPF.
The format of the revised MSS is closely aligned to the thematic structure of the SPPF in order to provide a straight-forward link between the SPPF and LPPF.
In particular the MSS implements:
Clause 14 (Settlement) by accommodating projected residential and industrial land needs over at least a 10 year period;
Clause 15 (Environment) by supporting the implementation of the Glenelg Hopkins Regional Catchment Strategy and other ‘environmental’ strategies;
Clause 16 (Housing) by identifying appropriate areas for future residential growth;
Clause 17 (Economic Development) by implementing ‘industrial’ and ‘commercial’ strategies, and by retaining existing references to the importance of agriculture; Clause 18 (Infrastructure) by highlighting the importance of infrastructure such as storm water drainage.
How does the amendment Amendment C43 introduces a new MSS and support or implement the deletes a number of Local Planning Policies. The LPPF, and specifically the new MSS is principally based on the findings and MSS? recommendation of the WLUS which is the successor strategy to CityPlan, which itself underpins the current planning scheme. Amendment C43 represents an evolution of the current MSS and confirms and refines the current strategic directions in the planning scheme. Does the amendment make The revised MSS and Local Planning Policies proper use of the VPP? have been prepared in accordance with the Practice Notes Format of Municipal Strategic Statements (February 1999); Writing a Local Planning Policy (December 1999); and Incorporated and Reference Documents (August 2000).
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Strategic Issue Response or Reference How does the amendment Relevant agencies were consulted during the address the views of relevant preparation of the amendment, as well as during agencies? the preparation of the Three Year MSS Review and the various strategies that underpin the amendment, particularly the Warrnambool Land Use Strategy. Have the resource and The planning authority has considered the administrative implications resource and administrative implications of the of the amendment for the amendment. The Panel finds that, on the basis of responsible authority been the information provided to it, the amendment properly considered? provides an appropriate balance between resources, administrative costs and community benefit. The Panel notes in particular that clarification of the WPS strategies, objectives and policies which will occur as a result of Amendment C43 will provide for more efficient and effective administration of the WPS.
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C. COUNCIL RESPONSE TO DETAILED SUBMISSIONS
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Submission No 4 Ms Shirley Duffield Annotated submission with detailed Council response.
ISSUE RESPONSE RECOMMENDATION
Recommends numbering items for ease This is a VPP structural issue which is • No change to MSS. of commenting rather than using dot beyond Council control. points.
• 21.06-3 dot point 12 Seeks deletion of dot point 12 under • No change to MSS. should be deleted. ‘To ‘Biodiversity and Native Vegetation’ in achieve net gain in native clause 21.06-3 ‘Environment vegetation under the Objectives’ relating to achieving net Victorian Native gain under the Victorian Native Vegetation Framework.’ Vegetation Management Framework. It is considered that it is irrelevant whether this dot point remains or not because the Native Vegetation Management Framework is State policy and must be adhered to by council under the SPPF.
• 21.06-4 dot point 2 Under Clause 21.06-4 under • Include change as Change wording ‘Biodiversity and Native Vegetation’ suggested. ‘Discourage the clearing the first dot point relates to of remnant discouraging vegetation clearing. vegetation……..’ to Requested that this dot point should be ‘Protect remnant changed to protect remnant vegetation. vegetation……….’ It is considered that this comment does have some merit however, the strategy should be re-worded so that it seeks the protection, as a priority, of those EVCs rated as having either high or very high conservation significance, are habitat corridors or areas identified as habitat for rare and threatened flora and fauna species.
• 21.06-4 move dot point 7, In Clause 21.06-4, dot points 7, 8, 9, 10 • Include changes as 8, 9, 10 & 11 to Coastal and 11 under ‘Biodiversity and Native suggested. Landscape Vegetation’ is questioned for their relevancy because they relate to tree plantings and landscaping works for approach routes and local streets, protection of exotic species, Norfolk Island Pines, protection of vistas and prevention of degradation of scenic landscapes rather than to biodiversity and native vegetation specifically. The suggestion that they would be more appropriately re-located under ‘Coastal Landscape’ is considered to have some merit and should be undertaken. These particular strategies are more relevant to landscape aesthetics than to biodiversity protection and obviously covers exotic species and not solely native vegetation species and relate better to management of coastal landscapes.
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ISSUE RESPONSE RECOMMENDATION
• 21.06-5 gives Council officers Clause 21.06-5 outlines the • No change to MSS. discretion when assessing planning implementation of Environment applications. All discretion should strategies, and states that these be removed. strategies will be implemented by: ‘Using zones, overlays, policy and the exercise of discretion’. The removal of the words ‘exercise of discretion’ will not alter how the zones, overlays and policy will be applied. The zones, overlays and policy instruments contain discretion, which is required to enable planning controls to be fluid and responsive to change.
• Against upgrading pedestrian Issues associated with planting of • No change to MSS. access through the middle of Lake Norfolk Island Pines along the Pertobe as it will threaten water foreshore and pedestrian access birds and wetland habitat through Lake Pertobe are not considered directly relevant to the MSS in terms of its statutory effect. These types of issues relate more to management planning activity associated with managing foreshore and parkland/recreational/wetland areas.
Believes encouraging large masses of The Planning Scheme, and in particular • No change to MSS. visitors to areas of natural environment the MSS, seeks to strike an appropriate destroys that very environment which balance between environmental, should be left just as it is. tourism and other competing factors.
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Submission No 13 Western Coastal Board
Annotated submission with detailed Council response.
ISSUE RESPONSE RECOMMENDATION
• Requests revised MSS strengthen Strengthening protection of the coastal • No change to MSS text, the protection of the coastal landscape has been highlighted due to the however review landscape perception that the existing SLO covering Strategic Framework Logans Beach has failed to ensure Plan and Outline Plans appropriate design of development on this to ensure urban growth section of Warrnambool’s coast. boundary is explicit. This issue is acknowledged by Council and has been considered in the revision of the MSS. The revised MSS refers to the protection of the coastal landscape under ‘Coastal/Hopkins River Environment’ and ‘Logans Beach’ in Clause 21.05-1 ‘Housing Overview’ by acknowledging the need to balance the desire for increased development and protecting the value of the coastal landscape within these coastal areas. Further specific recognition of the protection of the coastal landscape can be found in the following sections of the MSS: An objective under Clause 21.05-2 is ‘To protect the coastline and waterways’. Strategies are listed under Clause 21.05-3 in ‘General’ to contain growth within the defined urban growth boundaries and in ‘Neighbourhood Character’ to maintain viewlines to the coast. Under ‘Greenfield Development’ for the ‘Coast/Hopkins River Area’ a substantial emphasis is given to protecting landscape values through 14 strategies relating to this sensitive area. Under Clause 21.06 ‘Environment’ in ‘Coastal Landscape’ and under Clause 21.06-3 objectives for the ‘Coastal Landscape’ and Clause 21.06-4 ‘Environment Strategies’ under ‘Coastal Landscape’ numerous references are made to ensuring the coastal landscape is protected and carefully considered in strategic planning and development assessment.
• Clause 22.01-2, Logans Beach, Comments relating to the Logans Beach • No change to MSS. fails to contain references to the local policy are acknowledged however, Victorian Coastal Strategy and Amendment C43 does not propose to its policies of coastal protection directly amend this policy. Amendment C43 as a major priority. only re-arranges this policy in terms of the LPPF revised structure. A separate review is being considered for this and other local policies in future.
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ISSUE RESPONSE RECOMMENDATION
• Clause 22.01-2 does not provide Again, the comments relating to the Logans • No change to MSS. sufficient clarity with regard to Beach local policy are acknowledged the township boundary for however, Amendment C43 does not propose residential development along to directly amend this policy. The VCS is the coast. The Victorian Coastal referenced in the SPPF, which requires Strategy’s principle that linear consideration be given to all the Strategy’s spread of residential principles. Clause 21.06-4 Environment developments along the Strategies under Coastal Landscape also Victorian coast not be contains relevant strategies, such as encouraged should be expressed ‘Discourage ribbon development.’ and in the MSS. ‘Ensure townships have a definite visual edge, delineating the boundary between urban development and the natural landscape beyond’.
• Lack of public reserve along Comments under dot point 1 above are also • No change to MSS. coast has resulted in relevant here. In addition, Clause 21.06-5 inappropriate development Environment Implementation under within the coastal dune system. Undertaking further strategic work, includes Significant Landscape Overlay a review of all Significant Landscape has not been successful in Overlays along the coast to reflect the protecting the coastal landscape recommendations of GORLAS. around Logans Beach.
• Inclusion of the South West The South West Victoria Regional Coastal • Include changes as Regional Coastal Action Plan in Action Plan, 2002 (CAP) has not been suggested. the MSS. included in the MSS and should be included in the MSS. As it is an approved coastal action plan, it has a relevant status given to it under Clause 15.08 of the SPPF for consideration as a policy under the planning scheme. However, because the strategic process nature of the CAP it has limited direct relevance in terms of providing detailed drafting changes to the policies outlined in the MSS. Accordingly, it should be added as a reference document under Clause 21.10 in addition to the South West Victorian Coastal Planning Scheme Review 2001. Reference to the South West Victoria Regional Coastal Action Plan, 2002 should also be included under Clause 21.06 Environment relating to waterways and coastal landscape.
Change wording under Clause 21.06- The suggested change to the first dot point • Include change as 5 Environment Implementation, under ‘Other Actions’ in clause 21.06-5 is suggested. Other Actions. ‘Consult with the acceptable. Western Coastal Board concerning development on the coast according to its role to work with councils to develop and implement strategic solutions to matters affecting the conservation and use of the region’.
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SUBMISSION No 32 J & P Carrucan
Annotated submission with detailed Council response.
ISSUE RESPONSE RECOMMENDATION
• Use of indigenous plants should Seeks to not only preserve and enhance the • Include change as be mandatory along waterways environment but expand natural areas as well. suggested. and wetlands Suggests that indigenous native species should be made mandatory to be planted along waterways and wetlands, especially understorey species. It is considered that in Clause 21.06-4, dot point 5 under ‘Biodiversity and Native Vegetation’ could be amended to include reference to the use of indigenous native plant species with the inclusion of understorey species.
• Clearing of all remnant Removal of native vegetation is currently • No change to MSS. vegetation and habitat corridors controlled under Clause 15.09 and relate to the should be banned. Native Vegetation Management Framework and net gain policy as well as Clause 52.17 and any environmental overlays of the planning scheme.
Wetlands should be retained Suggests that greater use of wetlands as • Include change as and used as a filter of stormwater filters be used as part of modified in Council’s stormwater, and to mitigate development activity (i.e. use of constructed response. floodwaters. wetlands similar to some recent developments with large residential developments in Melbourne). It is considered that this suggestion does have some merit, however, the use of created wetlands to treat and filter stormwater from urban development requires care in terms of design and maintenance. Wetlands are not set and forget systems. In Clause 21.06-4 the sole dot point under ‘Sustainability’ relates to WSUD. This term should be expanded which includes the option of managing stormwater through the use of constructed wetlands. However, wetland treatments are not the only option and other mechanisms as described under WSUD should also be available for consideration and potential use.
Supports greenbelt between Protection of agricultural land around • No change to MSS. Warrnambool and outlying Woodford/Bushfield is considered to be townships adequately addressed by the proposed strategies included under ‘Bushfield and Woodford’ in Clause 21.05-3.
• Retail development in Comments about retail development and public • Include change as Woodford not needed transport are noted. Retail activity is considered modified in Council’s to relate primarily to local convenience type response. • Support improvements activity not larger retail services. The comment in public transport in Clause 21.05-1 under ‘Bushfield and Woodford’ to retailing should be expanded to more clearly relate to convenience type retail activity that services the daily needs of the local community only.
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ISSUE RESPONSE RECOMMENDATION
Bores should be restricted Regulation of bores for water supply is • No change to MSS. and monitored currently administered by Southern Rural Water and sits outside the statutory planning system.
Water re-use should be The suggestion to encourage wastewater re-use • Include change as encouraged is supported but should be considered only modified in Council’s where it can be demonstrated that such re-use response. water will not pollute other properties or waterways. In Clause 21.08-3 under ‘Water, Sewerage and Drainage’ the strategies for dot points 7 and 10 should be amended to provide for encouragement to re-use of treated wastewater on-site to more effectively seek to reduce water demand particularly for gardens while ensuring that wastewater pollution beyond the boundary of development sites are prevented.
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Submission No 28 Dr James Tait
Annotated submission with detailed Council response.
ISSUE RESPONSE RECOMMENDATION
• Incorporation of adopted Council policies irrespective of age are not • N/A – comment policies – some policies now proposed to be incorporated but have been only. out of date. used to inform policy objectives and strategy development where appropriate and are to be referenced only within the MSS. Undertaking further strategic work and other action sections of the MSS require policy and strategic directions of the MSS to undergo ongoing review.
• Require definitions, remove Terms used in the MSS do not require • Acronyms to be corrected. acronyms specific definitions due to the strategic nature of the MSS. Where terms such as ‘Warrnambool City Centre’ are used they can be readily identified from the Warrnambool Land Use Strategy Plan – 20 year plan 2004-2024.
• CLAUSE 21.01 MUNICIPAL PROFILE
• Economic Development – Rural zoned land is not intended as a • No change to MSS. rural zone was initially holding zone for future urban land use. The adopted as ‘holding zone’ for MSS is based on the policy intention to urban development protect and maintain land in the rural zone for agriculture. Future allocation of land use for rural zoned areas outside the urban growth boundary will need to be undertaken at a future point in time through a strategic review process of the extent of the urban growth boundary and structure planning for new Greenfield sites for urban expansion.
• Economic Development and Agree. An additional sentence should be • Include change as Infrastructure – tourism added which recognises the amenity factor suggested. industry not just related to for enhancing the tourism attraction of commercial tourist Warrnambool. attractions. Amenity, ‘feel good’ surroundings add to tourism, such as street amenity, parking, public transport.
• Infrastructure – planned link This is covered under Clause 21.08 • Change wording from road. No references to this in Undertaking further strategic work. ‘planned’ to ‘proposed’ link any other sections of the road. MSS.
• CLAUSE 21.02 KEY INFLUENCES
• Housing - unclear what the Dot points 6 and 8 are clear and both relate • No change to MSS. 6th and 8th dot points refer to. to changed household structure with differentiation between smaller households requiring greater housing stock demand and larger family groups requiring affordable housing.
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ISSUE RESPONSE RECOMMENDATION
• Housing – dot point 9 should Agree. Dot point 9 refers to the pressure for • Include words ‘Application read ‘Application for re- re-development of inner residential for’ at the start of dot point development of properties which is evident and is an 9. properties……’ influence on planning needs. However it is acknowledged that re-development is not an automatic right, and is subject to the usual lodging of an application and assessment.
• Housing – dot point 13 – Agree – since drafting of MSS, Nestle • Correct reference to ‘milk incorrect reference to company has been sold to ‘Fonterra’. processing plant’. ‘Nestle’ Correction to dot point 13 referring to the relationship between Nestle and Dennington is accepted, but should refer to the industry type rather than a company name.
• Housing – dot point 15 links Changes to dot point 15 not considered • No change to MSS. Allansford solely to industrial warranted because the industrial reference activity to Allansford is in a housing sense including township growth.
• Housing – dot points 16 & 18 Changes to dot points 16 and 18 are not • No change to MSS. go together. Residential considered warranted given that they both purposes should not be relate to identifying issues that require constrained by other uses and planning attention. vice versa – those uses should not be constrained by Dot point 18, referring to development the proximity to residential pressures at Logans Beach, is made in the areas. context of Key influences for Housing only, not tourism. There is no development • The tourism destination pressure for housing at the Breakwater due quality of Logans Beach is no to the land being crown land. less important than the tourism destination of the Breakwater.
• Environment – delete word Agree • Delete word ‘more’ from ‘more’ from dot point 1. dot point 1.
• Environment – dot point 2 – The reference to dot point 2 regarding the • No change to MSS. protection of farming protection of farming operations and a operations & development of greenbelt is noted. No change is warranted, a green belt around the City. the reference merely identifies a planning Suggests this should be issue. achieved through the presently undeveloped rural land, with further concentrated development outside it.
• Environment – dot point 5 – Agree. Suggested intent regarding dot point • Include change as unclear what is 5 is accepted and should be amended to suggested. Amend dot point environmentally read: ‘Pressure for urban development 5 to read ‘Pressure for urban unsustainable. concentrated along rivers, coastlines and development concentrated areas of remnant native vegetation is along rivers, coastlines and continuing and such development is areas of remnant native contributing to poor sustainable outcomes vegetation is continuing and and degradation of these environments.’ such development is contributing to poor sustainable outcomes and degradation of these environments.’
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ISSUE RESPONSE RECOMMENDATION
• Environment – dot point 10 – Agree. Suggested change to dot point 10 is • Include change as reference to ‘the region’ acceptable. suggested. should be amended to ‘parts of the City’.
• Environment – dot point 13 – Agree. Suggested change to dot point 13 is • Include change as reference to original town acceptable. suggested. survey should read ‘The original survey of land within the present City of Warrnambool includes many river and coastal frontages with private land’.
• Environment – dot point 5 Agree. The suggested intent is accepted and • Delete dot point 16. and 16 are the same dot point 16 should be deleted.
• Economic Development – dot Comment on dot point 5 under ‘Economic • No change to MSS. point 5 – questions the Development’ is not supported. The hypothesis relating additional reference to the link between retail growth retail opportunities to higher and higher residential densities is an density residential influence to consider in planning needs for development close to the the City. shopping areas.
• Economic Development – dot Suggested change to dot point 11 is not • No change to MSS. point 11 – Allansford warranted because the Land Use Strategy referred to only as envisages a business park development accommodating industry – establishing adjacent to Allansford should be promoted as a township. Must be read in the context of vibrant, varied suburb. Economic Development influences.
• Economic Development – dot Suggested changes to dot point 15 is not • No change to MSS. point 15. Reference should considered warranted given the pressure for not be made to ‘golf course’ recreational resort type developments along resorts. This was not the coast. These types of development have supported by the Land Use been proposed and needs to be recognised Strategy. for consideration in any planning response. The Land Use Strategy does identify this type of proposal as a possibility in its Key Strategic Directions (Clause 4.3, page 35 of the adopted LUS).Victorian Coastal Strategy may take precedence in any event.
• Infrastructure – dot point 2 – The term ‘receiving waters’ in the second • No change to MSS. queries definition of dot point under ‘Infrastructure’ refers to ‘receiving waters’ waterways, coastal water, lakes etc and is a common term used particularly by the EPA for pollution control.
• Infrastructure – dot point 7 – The suggested change to dot point 7 is not • No change to MSS. requests change to read ‘The considered to be warranted given that this existence of, and practicality merely reflects the fact that reticulated and cost of extension of, services can influence settlement patterns. water and sewerage may affect settlement patterns’.
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ISSUE RESPONSE RECOMMENDATION
• Infrastructure – dot point 13 Change to dot point 13 not considered • No change to says nothing, and should state warranted given that this relates to MSS. that infill development which identifying an issue that requires planning relies on access via laneways attention. will need to be controlled and co-ordinated under an appropriate overall development plan.
• CLAUSE 21.03 VISION – STRATEGIC FRAMEWORK
• Page 3 of 3 Land Use Strategy The Warrnambool Land Use Strategy Plan • Amend title of the map. plan contains unclear locations is considered sufficiently clear to provide for identification of particular localities. • Consider changing The title of the map should be made clear references of West that it provides the overall framework plan Warrnambool and East for the planning of the City. Warrnambool to inner Consolidation of changing the references Warrnambool. to West Warrnambool and Warrnambool East to inner Warrnambool could be • Clearly identify the Urban undertaken. growth boundary on the Plan.
• Guiding Principles – dot point These comments relate to the Council • No change, other than to 1 ‘natural environment’ is an Plan. The provisions of this Clause are a correct minor wording inaccurate phrase, as built direct translation from the Council Plan change to dot point 13 by form, infrastructure and open and therefore cannot be altered without adding the word ‘the’. environment are important also concurrently amending the Council assets. Plan. Accordingly, no changes are considered applicable. However, a small • Dot point 10 - reference to correction to the wording of dot point 13 indigenous plants should under ‘Guiding Principles’ is appropriate include exotics where which should read: ‘That the support and appropriate. growth of small business is fundamental to the economic future of the City.’ • Transport infrastructure is not discussed.
• CLAUSE 21.05 HOUSING
• CLAUSE 21.05-1 HOUSING OVERVIEW
• Definition problems – ‘Central Comments on definition issues have • Consider changing Warrnambool’, ‘Warrnambool already been commented upon earlier. references of West East’, ‘West Warrnambool’, Warrnambool and East ‘Warrnambool City Centre’, Warrnambool to inner ‘Inner Warrnambool’. Warrnambool. Agree. Suggested comment under • Neighbourhood Character – ‘Neighbourhood Character’ concerning • Include change as requests recognition that some development within inner areas of suggested. development which has Warrnambool being out of character and occurred is out of character and not managed because of a lack of has occurred due to no neighbourhood character definition are definition of neighbourhood accepted and recognition of this point character to prevent it. should be included.
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ISSUE RESPONSE RECOMMENDATION
• Redevelopment Areas – The comment under ‘Redevelopment • No change to MSS. Fletcher Jones and the Woollen Areas’ to Fletcher Jones and the Woollen Mill sites are referred to as Mill being within central Warrnambool is ‘Central Warrnambool’. The considered appropriate. It is clear what the same areas are called intent is with this text description of the ‘Warrnambool East’ and issue revolving around redevelopment ‘Warrnambool South’ and issues in terms of the central area of ‘Merrivale’. Warrnambool as apart from a suburb type description. The word central is used in lower case.
• No reference to the Redevelopment areas require • No change to MSS. development of strategies for neighbourhood character assessments to be the development of units and undertaken as outlined under Clause townhouses in Warrnambool 21.05-4 Housing Implementation – East and West Warrnambool. Undertaking Further Strategic Work.
• Warrnambool City Centre – Comments concerning the policy conflict • Include change as concerns regarding identifying between expansion of the commercial core suggested. the commercial core of and additional higher density residential Warrnambool for higher development are noted. The reference density housing. Commercial should remain but with a greater emphasis development should be the on encouraging higher residential priority, with shop-top housing development targeted at tourist encouraged. accommodation.
• Warrnambool South and The reference to land south of the railway • No change to MSS. Merrivale – unclear definition at Warrnambool South and Merrivale is a of land south of the railway general reference to an area. It is line. considered clear enough and should not be changed because it does not use the term ‘parcel of land’.
• Transit Orientated Settlement – Comments relating to increased residential • Clarify as recommended in queries what parts of Mortlake development along Mortlake Road relate Council’s response. Road continue to be available to maximising the exposure of this road for development, and whether and strong linkages to public transport. It ‘ribbon development’ along is considered that the wording does not entrances is appropriate. require alteration. The reference to the Russells Creek recreation corridor requires • Questions appropriateness of clarification in terms of the juxtaposition further development of the between flooding, open space, remnant Russells Creek recreational riparian environmental values and the corridor. reference in the last sentence to increased development in this locality.
• Greenfield Development Areas The reference to Structure Planning is • No change to MSS. – states that each development provided in the prefacing paragraph under area should include the need ‘Greenfield Development Areas’ and is for comprehensive structure further identified under Clause 21.05-3 planning and effective staging, Housing Strategies for each development and that this has only been area. referenced for the development area North of the Merri River.
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ISSUE RESPONSE RECOMMENDATION
• Greenfield Development Areas Comments on the designation of • No change to MSS. – does not address long term development areas as being arbitrary are issues and makes assumption noted but are really a reflective comment that land ownership, developer on the Land Use Strategy, which has been preference and pressure and finalised and is translated into the MSS. Council’s strategic planning will coincide. Selecting defined areas for immediate development and others for long term is arbitrary and a defect of the strategy.
• Greenfield Development Areas Identification of rural land in the • No change to MSS. – North East corridor – Wangoom Road and Horne Road area for excludes much of the land in future urban development is already given the City which is north-east. prominence through the North East Needs to be developed in co- Corridor Outline Plan (post 15 year ordination with the Eastern supply). Changing zones in this area is not Activity Precinct, as well as appropriate until development take up land to its east, south of rates have been achieved given the Wangoom Road and west of analysis arising from the Land Use Horne Road. Strategy, which already designates growth areas around the City and the need to protect surrounding rural land.
• Greenfield Development Areas The reference to as yet non-existent • Include change as – North East corridor – recreation land is not considered suggested. recreation reserve on Aberline inappropriate. Reference to it is associated Road not yet created. with current development activity. The Questions how land can last sentence on the bottom of page 2 of 18 support the development of a should be re-worded to improve its community focus? meaning.
• Logans Beach – lot sizes are The current planning direction for ‘Logans • No change to MSS. too big and indicates a need Beach’ is not proposed to be changed in and capacity for infill the MSS and so alterations at present are development. not considered warranted.
• Outlying settlements – Under ‘Outlying Settlements’ the • No change to MSS. structure plan or design reference to the need for Allansford to framework needed for have a structure plan or framework is Allansford obsolete because Allansford already has a UDF (2003).
• Inappropriate references to Agree. The change under Allansford to Include change as suggested. ‘low density residential zones’ refer to existing or present areas of LDRZ for Allansford and Bushfield is appropriate. The change under and Woodford, and should Bushfield and Woodford to refer to refer to ‘present low density existing or present areas of LDRZ is also residential zones’. appropriate.
• CLAUSE 21.05-3 HOUSING STRATEGIES
• First dot point – it is unclear Agree. Clear reference to the name of the • Include change as whether the Strategic Land Use Strategy or overall framework suggested. Framework Plan refers to the plan or Strategic Framework Plan used in Land Use Strategy or the the MSS is required. Council’s Strategic Plan
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ISSUE RESPONSE RECOMMENDATION
• Neighbourhood Character – dot Agree. The reference in the last dot point • Include changes as point 8 refers to shopfronts. under ‘Neighbourhood Character’ to suggested. Questions if this is appropriate shop fronts probably requires deletion. in the Housing Strategy The references under ‘Redevelopment section. Areas’ to inner Warrnambool, Warrnambool East and West Warrnambool • Redevelopment Areas – should be consolidated to simply refer to distinction is made between inner Warrnambool as per the Land Use inner Warrnambool and Plan Map reference. Reference to Banyan Warrnambool City Centre, Street in Warrnambool East should be however Banyan Street is then changed to refer to inner Warrnambool. referred to as ‘Warrnambool East’. Considered contradictory.
• Warrnambool City Centre – Agree. Suggested changes to dot point 3 • Include change as dot point 3 – need to ensure under ‘Warrnambool City Centre’ are suggested. higher density residential use considered appropriate. does not conflict with the core commercial purpose.
• Warrnambool City Urban Agree. The suggestion for a review of the • Include change as Design Framework is out of Warrnambool City UDF is considered suggested. date and should be reviewed reasonable and should be included.
• Greenfield Development – Suggested change to the last dot point • No change to MSS. should not be limited to use of under ‘Greenfield Development’ to indigenous plant species only, include exotic plants is not considered and use of exotics where appropriate given the desire to encourage appropriate should be the introduction of native species. considered
• Residential Land Release Comment concerning residential land • No change to MSS. Timeframes are arbitrary. release timeframes relating to the Land Use Strategy under ‘Residential Land Release Timeframes’ is noted, however are a translation of the Land Use Strategy which has already been adopted by Council.
• CLAUSE 21.05-4 HOUSING IMPLEMENTATION
• Use of zones Refers to later information forthcoming. • No change to MSS. No response able to be made at this time.
• Undertaking Further Strategic Agree. Comment on rural zones under • Include change as Work – should include new ‘Undertaking Further Strategic Work’ suggested. Rural Zones where they are not is noted. imposed by a Ministerial amendment
• Need to include Urban Design Structure plans are proposed for all • No change to MSS. Frameworks for each of the ‘Greenfield Areas’ – no change is new Development Areas in the necessary. Greenfield section
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ISSUE RESPONSE RECOMMENDATION
• Other Actions – Agree. Suggested action under ‘Other • Include change as Coastal/Hopkins River Actions’ for investigating the practicality suggested. Environment section needs to of providing open space areas along the refer to investigating the Hopkins River is considered appropriate practicality of establishing a and should be included. reserve along the south bank of the Hopkins River, given very steep cliff faces in some areas. May be more practical to impose landscaping requirements on landowners to maintain.
• CLAUSE 21.06 ENVIRONMENT
• CLAUSE 21.06-1 ENVIRONMENT OVERVIEW
• Biodiversity and Native Agree. Under ‘Biodiversity and Native • Include changes as Vegetation – questions Vegetation’ the comments on geological suggested. accuracy of geological description is acknowledged and should be references to scoria cones, re-worded to more accurately reflect the stony rises. Suggests geological nature of the City. describing the City as having stable soil, underpinned by sedimentary sand/limestone and in places, basalt sub-soils.
• Queries references to salinity Agree. The reference to salinity also • Include changes as as a problem in the City. requires changing – refer to suggested. recommendation on DSE comments.
• Waterways, page 1 of 9, and Agree. Comments relating to titles on the • Include changes as under Coastal Landscape, page coast in both the ‘Waterways’ and suggested. 3 of 9 – incorrect references to ‘Coastal Landscape’ sections require land west of the Merri River correcting – also refer to recommendation containing private land to the on DSE comments. coast.
• Waterways – delete last Agree. Comment regarding the reference • Include change as modified sentence stating that the under ‘Waterways’ to the Hopkins River in Council’s response. Hopkins River provides an linking the City to Deakin Uni requires a important link between the more accurate description such as linking City Centre and Deakin the eastern area of inner Warrnambool University. The river does not with the University. extend to the City Centre.
• Acronyms should be spelt out Agree. Acronyms should be spelt out – • Include changes as (page 2 of 9 and page 5 of 9) refer also to DSE comments. suggested.
• Waterways - Lake Pertobe – Agree. Reference to better link Lake • Include changes as lack of strategic plan should be Pertobe with the City Centre is suggested. referenced. Future planning acknowledged and should be included. should ensure that Lake Pertobe provides linkages to the Foreshore.
• Coastal Landscape – questions The reference to the Great Ocean Road in • No change to MSS. what parts of the Great Ocean the MSS is considered appropriate and no Road Strategy are relevant to change is warranted. Warrnambool.
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ISSUE RESPONSE RECOMMENDATION
• Heritage – does not reflect Agree. Heritage issues require further • Update to include reference present status of the Gap consideration. to Heritage Gap Study as Study. suggested.
• CLAUSE 21.06-3 ENVIRONMENT OBJECTIVES
• Biodiversity and Native Agree. Comments regarding the GHCMA • Include change as Vegetation – dot point 5 should in dot point 5 under ‘Biodiversity and suggested. be related to those parts of the Native Vegetation’ are supported. Glenelg Hopkins Region which are within the City.
• CLAUSE 21.06-4 ENVIRONMENT STRATEGIES
• Biodiversity and Native Agree. Comments on biodiversity sites in • Delete dot point as Vegetation – dot point 4 – dot point 4 under ‘Biodiversity and suggested. queries what the sites are that Native Vegetation’ are supported. The are identified on the DSE reference to mapped sites which have not Biodiversity flora and fauna been included in planning scheme maps is maps. not appropriate and should be deleted.
• Waterways – dot point 6 – Agree. Comments regarding what a • Include change as need to define what a waterway waterway is considered appropriate and suggested. is. reference should be made specifically to the Hopkins and Merri Rivers and Russells Creek and any other waterway that can be defined. Reference should also be made in this dot point to wetlands such as the South Warrnambool wetlands etc. It is further proposed to replace reference to a 20 metre wide public reserve with a substantial public reserve….
• Flooding – questions the ability Reference to the North Warrnambool • No change to MSS. to implement the North Flood Study should remain unchanged. Warrnambool Flood Study and This document provides strategic intent to its recommendations. assist in decision making. More detailed implementation through zoning and overlays will appropriately provide for more detailed and specific implementation of parts of the study.
• CLAUSE 21.06-5 ENVIRONMENT IMPLEMENTATION
• Questions the ability to Reference to the Great Ocean Road • No change to MSS. implement the Great Ocean Landscape Assessment Study should Road Region Landscape remain unchanged. This document Assessment Study. provides strategic intent to assist in decision making. More detailed implementation through zoning and overlays will more appropriately provide for more detailed and specific implementation of parts of the study.
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ISSUE RESPONSE RECOMMENDATION
• Other Actions – queries what Comments relating to Roadside Vegetation • No change to MSS. are the ‘Roadside Vegetation Plans in dot point 6 under ‘Other Actions’ Plans’ referred to in dot point relate to future plans that may be 6. developed and does not warrant removal or alteration. • Include reference to • Dot point 8 – ‘Integrate the Comment concerning the CMA Regional Glenelg Hopkins Regional Regional Catchment Strategy Catchment Strategies in dot point 8 are Catchment Strategy. Action Plans with the MSS’. noted and should be more explicit in the Assumes this refers to the reference to the GHCMA. Glenelg Hopkins Strategic Agree. Reference to wetlands in dot point Action Plans and states that 9 should be deleted. There are no Ramsar these are largely ‘wish lists’. wetlands in the municipality.
• Dot point 9 – queries the • Delete dot point 9. relevance of the ‘Western District Lakes Ramsar Site Strategic Management Plan’ to the wetlands in Warrnambool.
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Submission No 34 – Department of Sustainability and Environment
Annotated submission with detailed Council response. Note that the Department withdrew their submission and did not attend the Panel hearing following agreement from Council to incorporate the changes nominated.
ISSUE RESPONSE RECOMMENDATION Need to recognise Agenda 21, ESD – Ecologically Sustainable No change to the MSS. including ESD principles Development is a concept that is already enshrined within the planning scheme under Clause 11.01 of the SPPF where a balance is required to be made for strategic planning and development assessment on the basis of achieving a net community benefit and sustainable development. It is also referred to under Clause 21.06-1 “Environment Overview” in “Sustainability” of the MSS. The principles of ESD provide a foundation for developing policy objectives and strategies, which based on the outcomes of the Warrnambool Land Use Strategy have been considered. Inclusion of reference to ESD and its principles within the MSS is possible and appropriate as background context and on the basis of establishing the basis upon which the policies of the MSS have been developed. Attempting to directly incorporate the concept of ESD and their principles specifically within the policy objectives and strategies may be more difficult due to the highly theoretical nature of the principles of ESD.
Make reference and respond Greenhouse Gas emissions and Background text to be to reducing Greenhouse Gas Climate change issues are relevant and included under Clause Emissions including strategies can be introduced as a background 21.01. to adapt to climate change context. The planning scheme under the SPPF and Particular Provisions as Council recognises the well as the MSS already addresses international and national issues relating to siting and design of commitments to minimise development to take into regard solar greenhouse gas emissions and energy efficiencies. and its role in responding to climate change. Current However, additional references under predictions are that the housing, environment and current atmospheric infrastructure would be useful to cover greenhouse gas levels will issues associated with potential sea lead to climate changes in level rise and the influence this effect the South West of Victoria. may have on natural environments, CSIRO research modelling land uses and development. Examples has indicated that in the of issues include increased coastal next 50 years temperatures hazards such as coastal erosion, will increase, extreme increased flooding from increased weather events will storms, the need to provide for buffer increase and rainfall will zones and setbacks to allow coastal decrease. These climate
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wetlands to migrate landwards to changes are expected to continue to maintain their ecological change the geographical function as a response to rising sea distribution of some levels etc… primary industries such as dairying and cropping. Appropriate responses to climate change include reducing greenhouse gas emissions, sequestering of carbon through the enhancement of greenhouse sinks, and the development and implementation of strategies to adapt to climate change. In addition, coastal hazards, such as coastal erosion, increased flooding from increased storms, the need to provide for buffer zones and setbacks to allow coastal wetlands to migrate landwards to continue to maintain their ecological function as a response to rising sea levels
Make reference to importance Water conservation is important and Include background text of water conservation the general text provided by DSE under Clause 21.01: including incentives for could be added however, the smarter water use references to Water Sensitive Urban Current use and Design may cover the need to ensure management of water that new development takes into regard resources is not the need to take care with saving water sustainable. Climate use. change may see the region’s water resources become less reliable. Per capita water use in regional towns and cities is higher than in the Melbourne Metropolitan area. Regional Victorians will need to change the way they use water. Council has a role in partnership with other water management agencies, to educate water users and provide incentives for smart water use in the residential, industrial and rural sectors.
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ISSUE RESPONSE RECOMMENDATION Reference to biodiversity Biodiversity protection is already Include specific sites under assets including Starlight Caves addressed adequately in the MSS. Clause 21.01 as a non- (Southern Bent Winged Bat Listing important biodiversity assets is inclusive list, ie as maternity cave); Logans Beach okay but needs to be comprehensive. examples. Also include the nursery for Southern Right If this is not possible, then it should Francis Tozer Reserve. Whales; the Hopkins and Merri probably not be undertaken. River estuaries; beaches, embayments and tidal rock platforms; Middle Island Penguin colony; Maam wetland reserve; Lake Pertobe wetlands; and Coastal Dune Scrubland. Correct reference to “region” In Clause 21.06 under Biodiversity and Correct references as Native Veg, some references to required. “region” are more correctly references to the “Glenelg Hopkins Region”, as they have been sourced from the Regional Catchment Strategy Strengthen reference to and Protection of Aboriginal cultural sites Include text as suggested by importance of protection of is a difficult task because it is usually DSE. Aboriginal Cultural sites the desire of local Aboriginal Aboriginal people have including consultation and communities to not have culturally occupied parts of the partnerships with Aboriginal significant sites identified. This is Glenelg Hopkins region for land management groups. usually because of fear of desecration. at least 11,000 years and The planning system is currently probably for more than unable to identify such sites because 60,000 years. Evidence of the only current tool – the Heritage Aboriginal land use in the Overlay is not structured to region includes scarred accommodate indigenous history or trees, stone arrangements, cultural sites. Given the new mounds, rock shelters, stone Aboriginal Heritage Bill, it may be engraving sites, middens, inappropriate to make specific rock paintings, surface reference to Aboriginal cultural scatters, fish traps, burial heritage and protective legislation places, stone house sites, issues in the MSS at this stage. quarries and axe grinding However, it is important to make some places. Indigenous heritage reference to the need for land use and places are landscapes, sites development to recognise and respect and areas that are Aboriginal cultural heritage values. particularly important to The MSS already contains clear indigenous people as part of objectives and strategies under Clause their customary law, 21.06. These could be enhanced by developing traditions, including the suggested text from DSE history and current within the “Heritage” description practices. All indigenous contained under Clause 21.06-1 heritage places have “Environment Overview”. associated indigenous heritage values. Maintaining heritage values and places is a vital part of the community’s ‘sense of place’, cultural identity and well-being. This is particularly true for indigenous Australians, whose heritage creates and maintains links between ancestors, people and the land.
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ISSUE RESPONSE RECOMMENDATION Include use of the The precautionary principle is Include modified text as Precautionary Principle in the considered appropriate and reference follows under Clause assessment of development should be included under clause 21.06-1 Sustainability: proposals. 21.06 of the MSS. Council recognises that the precautionary principle has practical application in the assessment of development proposals. Clause 21.01 under Clause 21.01 Municipal Profile – Include changes as Environment section correct Environment - suggested change is suggested. reference at end of section acceptable. from Victorian Coastal Strategy to Regional Catchment Strategy, and change last paragraph to include pest plant and animals and residential development as environmental threats. Clause 21.02 Environment Clause 21.02 Key Influences – Include changes as section – dot point 10 to Environment - suggested wording suggested. include toxic algal blooms, change is acceptable. and this section to include reference to the Merri Marine Sanctuary and the Logans Beach Whale Watching facility as nationally significant ecotourism resources which need to be protected.
Clause 21.02 Infrastructure – Infrastructure - suggested wording Include changes as dot point 1 include “especially changes are acceptable. suggested. adjacent to waterways”. Dot point 4 include “if it is managed sustain ably”.
Clause 21.05 – strategies – Clause 21.05-3 Housing Strategies – Include changes to Coast/Hopkins River area – Greenfield Development – dot points 6 and 10 dot point 2 to refer to 30m Coast/Hopkins River Area – as suggested. river edge reserve. Dot point suggested change to dot point 2 is not 6 to list the means of affecting supported, as leaving the word net environmental benefits “substantial” will enable a wider and include stormwater re-use, reserve to be achieved where drought resistant gardens, necessary, and the width of reserves habitat creation and should be determined through enhancement and revegetation structure planning. Suggested and solar orientation of change to dot point 6 is acceptable buildings. Dot point 10 which should be re-worded to read should include impact of “Require the preparation of detailed climate change. siting and design schemes such as stormwater re-use, drought resistant gardens, habitat creation and enhancement which includes revegetation and solar orientation of buildings that demonstrate net environmental benefits resulting from any form of proposed residential development.” Accept suggested change to wording of dot point 10. WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 84
ISSUE RESPONSE RECOMMENDATION Clause 21.05 – Bushfield and Bushfield and Woodford – suggested Include change as Woodford. Include dot point additional dot point is supported, modified per requiring 30m river edge however it is proposed to require a Council’s response. reserve as part of subdivision “substantial” reserve, which will for new residential housing. enable a wider reserve to be achieved where necessary. The width of reserves should be determined through structure planning. Clause 21.05 – Further Clause 21.05-4 Further Strategic No change to MSS. Strategic Work – Greenfield Work – Greenfield Areas – Areas. Include dot point suggested change is not considered identifying high priority river appropriate because identification of rehabilitation stretches. high priority river rehabilitation stretches is identified as further strategic work in the second dot point under “General”, which seeks to obtain appropriate open space at selected locations along the Hopkins and Merri Rivers. Identification of river rehabilitation sites is more appropriately undertaken through CMA processes rather than the MSS. Clause 21.06-1 Environment – Clause 21.06-1 Environment No change to MSS – Overview needs separate Overview – suggestion to add a already covered by section on Coastal Waters, description for Coastal Waters is not changes including reference to the considered necessary. References to recommended in dot Merri Marine Sanctuary, rock places and assets such as the Merri point 4. platforms, seagrass and kelp Marine Sanctuary, Lady Bay, beds, penguins at Middle beaches, seagrass beds, rock Island, Southern Right Whales platforms etc should be included at Logans Beach, and Starlight under either “Biodiversity and Native Caves. Vegetation”, “Waterways” or “Coastal Landscapes” where appropriate. Clause 21.06-1 Biodiversity Biodiversity and Native Vegetation – Include changes as and Native Vegetation – Suggested changes and comments are suggested. include reference to climate accepted. change, questions how applicable reference to dryland salinity and rising water tables is to the Warrnambool region. Clause 21.06-1 Waterways – Waterways – suggested comments Include changes as request to correct false and changes are accepted. The suggested. statement as there is no reference to wetlands associated with private ownership of the the Merri River should relate to the coastline west of the Merri coastal saltmarsh wetlands, and River; request to name wetlands associated with the estuary wetlands and not use of the Merri River. abbreviations of JAMBA, CAMBA, etc.
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ISSUE RESPONSE RECOMMENDATION Clause 21.06-1 Fire – change Fire – suggested changes are Include changes as last sentence to read “Fire is accepted. suggested. also required to reduce fuel loads and the subsequent risk of wildfire especially in areas adjacent to residential/industrial development.” Clause 21.06-3 Environment Clause 21.06-3 Environmental Include changes as Objectives – Sustainability – Objectives – sustainability - suggested. new dot point “to plan for suggested additional dot point is coastal impacts associated acceptable. with sea level rise and climate change”.
Clause 21.06-3 Environment Waterways – suggested intent to Include change, Objectives – Waterways – dot change dot point 6 is acceptable modified as per point 6 to read “To encourage however, the wording should be Council response. the restoration of degraded modified for the dot point to read: land and the revegetation of “To encourage the restoration of flood plains and riparian degraded land, particularly stream zones”. frontages, floodplains and riparian areas.” Clause 21.06-3 Environment Steep Land – suggested intent to Include change, Objectives – Steep Land – dot change dot point 6 is acceptable modified as per point 2 to read “To encourage however, the wording should be Council response. development away from modified for the dot point to read: ridgelines and hilltops”. “To avoid development on prominent ridges and hilltops.” Clause 21.06-4 Environment Clause 21.06-4 Environmental Include changes as Strategies – Biodiversity and Strategies – Biodiversity and Native suggested. Native Vegetation – dot point Vegetation – suggested changes to 1 to read “Discourage the dot points 1 and 3 are acceptable. clearing of remnant vegetation especially in habitat corridors associated with drainage lines stream frontages”. Dot point 3 to read “Require revegetation along river frontages and floodplains using original Ecological Vegetation Classes (EVC) species”.
Clause 21.06-4 Environment Waterways – suggested intent is Include change, Strategies – Waterways – acceptable, however insufficient modified as per clarification on dot point 9 re: information available to determine Council response. coastal setbacks. set distance. The dot point should be amended to require development setbacks to consider sea level rise associated with climate change which should read: “Development on the coast and adjoining estuarine areas should be setback sufficiently to take into account the cumulative effects of the 1:100 year storm event, sea level rise associated with climate change.”
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ISSUE RESPONSE RECOMMENDATION Clause 21.06-4 Environment Coastal Landscape – suggested No change to MSS. Strategies – Coastal change to dot point 1 is not Landscape – dot point 1 to considered acceptable and the read “Site residential and wording should not change. The dot other development away from point already addresses the need to vantage points and viewlines”. protect vantage points and viewlines from inappropriate development and allows scope for design innovation to accommodate both views and protection of the coastal landscape. Clause 21.06-5 Environment Clause 21.06-5 Environmental Include change as Implementation – Undertaking Implementation – Undertaking suggested. Further Strategic Work – Further Strategic Work – suggested include dot point to read additional dot point is acceptable and “Identify those areas where should be included. either the ESO or SLO does not include private land buffer zones which adjoin crown land covered by either the ESO or the SLO and to amend the overlays to include such buffer zones.”
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D. ANNOTATED MSS BEFORE THE PANEL
WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
21 MUNICIPAL STRATEGIC STATEMENT
21.01 MUNICIPAL PROFILE
Overview Warrnambool is Victoria’s largest coastal City outside Port Phillip Bay and is the fastest growing economy and population centre in south-west Victoria. The City is a major provider in the fields of commerce, governance, social services, health, education, culture, the arts and recreation. Warrnambool is a major destination for people travelling along tourist routes including the Great Ocean Road, Princes Highway and the south-west railway, and caters for regional, intrastate, interstate and international visitors. With a location adjoining both protected and exposed coastline and a strong maritime and built heritage, over 700,000 tourists visit the City each year. As well as a developing tourist industry, Warrnambool is the focus for a range of activities that provide an employment base for the City’s population of approximately 30,900 and the adjoining sub-region. These include a major retail and business centre; primary production and food processing; quality education facilities from pre-school to university; community, health and governance services; and manufacturing. (15,p7) Housing (CS) Warrnambool is centred around the old City core south of the Princes Highway, which forms a grid pattern comprising significant heritage buildings and precincts with a strong landscape theme of Norfolk Island Pines. The town originated with a tendency to turn its back on the coast due to the severity of onshore winds, creating developed areas set back from the coastline. North of the highway, there is a range of subdivision styles responding to the terrain, watercourses and main roads. Drainage issues have also influenced the development of certain locations. The smaller satellite townships of Allansford and Dennington have developed in a linear fashion and each has their own identity. Woodford and Bushfield are smaller settlements offering a relaxed rural lifestyle on the northern boundary of the municipality (2,p1). Industrial areas are often in proximity to residential development, and there is a need to provide adequate buffers between incompatible land uses (1, 22.03-2 –s-CS). The total population of the City of Warrnambool is approximately 30,900. (15, p7) It is estimated that the population will increase by approximately 6,000 by 2019. This equates to an average annual growth rate of 1.3% compared to the growth rate of 1.0% between 1981 and 2001. DSE growth projections for regional Victoria are for an average annual growth rate of only 0.9% to 2019. (2,sp4) Change is also expected in the age structure over the next two decades with the 35-49 age group projected to have the greatest net growth, followed by the 15-24 age group. (2,p5) The total number of households is 12,413 and is expected to grow to 16,539 between 2004 and 2019, and to 17,868 by 2024. This represents an average annual growth rate of 2.2%, based on a projected household size of 2.2 persons per household. (2,sp4) Warrnambool’s housing profile shows slightly more semi-detached (5%) and unit style housing (8%) than the rest of the Western District and Regional Victoria. (2,p14) Environment Warrnambool City is located within the Glenelg Regional Catchment and the Glenelg Regional Catchment Strategy (RCS) 2003 – 2007 and the Victorian Coastal Strategy (2002) are the primary environmental planning frameworks for land, water and biodiversity in the region (16,sp5-CS).
The Glenelg Hopkins Region is approximately 25,000km2 in area, and has a population of around 100,000 people, with approximately 80% of the area used for agricultural production activities (17, sp22). The region contains a range of natural assets in the form of its biodiversity, waterways and wetlands, soils, forests and coastal areas, which support a unique quality of life. Three of the most important industries in South West Victoria - agriculture, fisheries and tourism - depend on the maintenance of a healthy natural resource
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base. The region is home to a number of threatened species of flora and fauna found on land and in aquatic environments (16, p7). Major threats are inappropriate development, pest plant and animal invasion and urban encroachment (16, p8). In the Lower Hopkins catchment, the Fiery Creek, Mount Emu Creek and Brucknell Creek all converge into the Hopkins River which then flows into the Southern Ocean at Warrnambool (17, sp16). The Merri River has its own separate catchment and also runs out to sea at Warrnambool. There are many small, shallow lakes, floodplains and wetlands throughout the Lower Hopkins area. (17,s p16-CS) The topographical features in the municipality range from the coastal system of beaches, cliffs, dune, estuaries and swamps/wetlands to the river valleys and the rural hinterland. Most of the land area is located across low rolling coastal hills. Native vegetation across this area has mainly been removed often as a result of grazing. The coastal areas retain areas of significant native vegetation and there are efforts to revegetate these areas (CS). Inland degradation issues include soil structure and water quality deterioration and invasion by pest plants, whilst erosion of the coastal dunes is also occurring. The flood plains of the Hopkins and Merri Rivers and Russells Creek affect large areas of land throughout the City and the surrounding rural area. (From existing Clause 21.02 -CS) The heritage assets of Warrnambool are a significant feature of the region. The district was originally occupied by the clans of the Kirrae Wuurong and Gunditjmara people and there are numerous indigenous archaeological sites, the oldest at Point Ritchie dating from 60,000 to 80,000 years ago. The City also has a significant number of notable buildings and historic precincts including church complexes, public buildings and areas of small stone and wooden cottages. (From existing Clauses 21.08 and 21.11- CS) Warrnambool City forms part of the South West Coastal Region that incorporates the Victorian coastal area from Moonlight Head to the South Australian Border. It includes the municipalities of Corangamite Shire, Moyne Shire, Warrnambool City and Glenelg Shire and is overseen by the Western Coastal Board. (11sp 32, 33) The Victorian Coastal Strategy (VCS) recognises a range of attributes that exist within the Region generally, and also those values and threats within Warrnambool that will require careful management to ensure the ongoing protection and enhancement of the area’s important coastal features. (11sp 32, 33) Warrnambool is identified as an activity node in the VCS that exhibits the following values:
• a range of natural and cultural values including sites of indigenous and non- indigenous heritage significance, scenic landscapes and wild life viewing; • commercial fishing, shipping and boat harbour activities; • residential development; and • a range of recreational and tourism values including swimming and surfing beaches, recreational fishing and boating and a range of tourist accommodation types. (11,sp 32, 33) The area in the vicinity of Warrnambool is recognised in the VCS as a priority area requiring management of a range of environmental threats including erosion/sedimentation and turbidity. (11,p 32, 33) Economic Development The majority of the working population in Warrnambool is engaged in retail and wholesale trade, health and community services and manufacturing industries. Employment in the recreational, personal and other services areas of the economy is also important, particularly in the tourism sector. Warrnambool also has strong employment in the educational sector due to the presence of tertiary institutions including Deakin University and the South West College of TAFE. (2,p10) Industry sectors which have experienced growth in the last decade are property and business services, retail and wholesale, health and community services, personal and other services, education and manufacturing (2,p11). Rural land in the municipality forms part of the highly productive Western District. The significant processing and agricultural servicing facilities located in Warrnambool are of
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advantage to local primary producers and a source of local employment. The preservation of agricultural land in lots or holdings which can sustain and provide for efficient and effective production is necessary (CS) to sustain the agricultural economy of the area, as well as the industries which rely on agricultural products for processing. (1,from existing 22.02-8) Fragmentation of agricultural land into lots which cannot facilitate agricultural production undermines the industry and the wider economy (CS). There needs to be a balance between land capability and land development requirements while not compromising primary production (CS). There is a clear retail hierarchy in the municipality (CS). The Warrnambool City Centre functions as the principle retail and commercial centre for the south-west region of Victoria. The municipality comprises other retail components including the Eastern Activity Precinct (which acts as a secondary retail centre) and a network of smaller centres ranging from small shopping centres to approximately 20 general and convenience stores (2, p28). The demand for bulky goods retailing is growing and has concentrated along the Princes Highway which offers large, level sites with a high degree of exposure. Future development needs to take into account the primacy of the Warrnambool City Centre and the need to ensure that all efforts are made to consolidate and strengthen the City Centre’s retail and other service functions, particularly as this is the principal centre servicing the surrounding catchment and the wider south-west region of Victoria. (3, p16). The Industrial Strategy (2001) has adopted a demand scenario for a ten year period to 2010 of 1.9ha per year (for lots of less than 1ha) requiring a total of 19ha over the ten year period; and an allowance of 20ha for major enterprises (2,sp33 -CS). A decline in the textiles and clothing industry has made way for food production and regional service industries as significant employers within Warrnambool. As a regional City, Warrnambool provides industrial land for the entire sub-region. Allansford has been identified as the preferred location to support major industrial development and already contains an industrial estate and several longstanding businesses. Investigations already undertaken by Council reveal a positive scenario for locating an intermodal freight hub adjacent to the industrial estate in Allansford (2, sp30). Export growth in key processed foods such as meat and dairy foods presents opportunities for future expansion of these industries in the future. It is also important to ensure that sufficient land continues to remain available to accommodate the ongoing need for smaller service industries. In addition, there is an increased demand for new warehousing and larger sites with truck access (2, p30). Tourism is a major contributor to the local and regional economies. The City has a strong maritime and built heritage combined with the natural assets of the coast and beaches and is located at the western entrance to the Great Ocean Road. (From existing Clause 21.10) The main tourism market within Warrnambool comprises the family beach holiday segment. The Warrnambool South foreshore area is the main holiday accommodation precinct for these visitors and has progressively developed to capture this market. Whilst development is occurring to meet the apparent strong demand for holiday accommodation, there is a lack of alternative forms of accommodation directed at other market segments such as a backpacker, resort and 4 or 5 star accommodation. (2, p29) Continuing development of major tourism assets such as the Flagstaff Hill Maritime Museum will generate increased visitor numbers and a need for more tourist oriented retail land uses to support the increase in visitor spending (2, sp29). Infrastructure (CS) Warrnambool is located on a National Highway Route, as well as the Hopkins Highway. Ready access is provided to the neighbouring centres of Portland, Hamilton, Colac, as well as Ballarat, Geelong and Melbourne, by a highway and main road network. Raglan Parade (Princes Highway), Mortlake Road (Hopkins Highway) and Caramut Road provide notable entrances to the Central Activities District. The City is connected to the state rail network, providing access to Camperdown, Colac, Geelong, Melbourne and beyond. V/Line Freight and private transport companies provide rail freight services. Warrnambool City Council operates an aerodrome north of the City which is used for emergency air links, freight facilities for local producers and commuter service. (1, 21.11-s-CS). MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 3 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE] LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
• A clear boundary to the north east of the City would be created through a planned link road that would provide an alternative access route around the City, and divert traffic pressure from Mortlake Road and Raglan Parade. A vegetated buffer along the outer edge of the link road should incorporate a bicycle and pedestrian path, provide clear separation between the urban and rural areas, and foster a sense of appreciation for the rural surroundings. (2,sp52) The regional centre is serviced by reticulated water sourced from the Otway Ranges. The existing supply is reaching capacity and consideration should be given to an upgrade of infrastructure or alternative water sources within the next decade. The Wannon Water sewerage treatment system was recently upgraded and is able to meet the needs of the community for the foreseeable future. (1, 21.11-s-CS).
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21.02 KEY INFLUENCES The following key influences have been drawn from various reference documents included in Clause 21.10 and provide the rationale for the objectives and strategies at Clauses 21.05 – 21.08 in the MSS. Housing
The rate of demand for accommodation is forecast to continue at the current increased level. (2,p34) Approximately 250 dwellings per year are constructed in the municipality of which 27% are medium density developments (2,sp 33- CS). A total of just under 200 new lots are required per year. (2,sp 33 – CS) There will continue to be an increase in household formation particularly due to a requirement for dwellings for single persons and couples without children. (2,sp34) Warrnambool will have a population of at least 38,000 by 2020, of which 23% will be aged over 60 years or more and 3% will be aged 85 years or more. (15,p13) Greater variety of housing stock will be required to meet the increased variety of household types. (15,p13) The projected demographic composition of the community will see an increased representation in the older age groups, continuing to favour the supply of smaller allotment sizes, but without a corresponding reduction in dwelling size. (2,sp34) A requirement for accommodation for expanding families is still anticipated in the most affordable development locations. (2,p35) Re-development of properties within the inner established residential area for unit accommodation will continue. (2,sp34) As a result of population growth, there will be a demand for development of greenfield residential areas. (CS -new) Demand for properties with proximity and/or views to the coast or rivers will continue to be strong. (2,p34) Dennington and North East Warrnambool will continue to expand (CS). Dennington will continue to be strongly associated with the operational requirements of Nestlé. (2,p35- CS) Bushfield and Woodford will continue to attract new residents seeking a retreat-like, small community lifestyle and will also provide tourist accommodation opportunities. (2,sp35) Allansford has potential for new industrial activity and will provide for modest township development opportunities. (2,sp35 - CS) Residential areas need to be protected from the effects of industrial and other uses that have off site impacts, without impeding those uses. (1, 22.03-2) Demand for low density residential and rural living lifestyles has the potential to fragment productive agricultural land. (21.03) There is particular pressure for development at Logans Beach which is a popular tourism destination. (s10W,p9- CS)
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Environment
Any development near waterways will require more open space and environmental protection and rehabilitation treatments. (2,p36-CS) Appropriate management of the urban-agricultural interface will be required to protect farming operations and maintain a greenbelt around the City. (2,p36) Rural living subdivisions at Bushfield, Woodford and Allansford have followed the path of the river, adding further stress to this sensitive environment. (2,p18) Erosion, mass movements, land slips and salinity are some of the local problems resulting from the continued environmental degradation of the district. (2,p18) There will be a demand for further urban development, concentrated along rivers, coastlines and areas of remaining native vegetation which is not environmentally sustainable. (2,p18- CS) Streamside qualities in the municipality are severely degraded and the majority of indigenous vegetation is cleared. (CS) Environmental sustainability will continue to increase in importance. (15,p13) Significant changes in the health of the catchment will not be achieved unless the activities, culture and economy that drive degrading processes are addressed in a holistic fashion. (s16, p8) Priority assets in the form of biodiversity, waterways and coastal areas need to be protected. (s16, p8) Soil decline, salinity, acid sulphate soils and pest plant and animal infestations are threats to the region. (s16, p8 - CS) The Great Ocean Road Region has a stunning natural environment, natural resource base and vibrant communities. (18, summary sheet –s-CS). There is land liable to flooding in north and south Warrnambool associated with the Merri River and Russells Creek (CS). The original town survey of Warrnambool includes many river and coastal frontages within private land (CS). Landscape character is of importance to the environment, built form and economy of the Region. (s10 R, pg10 - CS). The dominance of the landscape from key viewing locations throughout the municipality. (s10R, pg 13) There is demand for extensive redevelopment along the coastal areas in the municipality. (s10W,sp9- CS) Economic Development
While employment within the retail service sector is relatively high (18%), the establishment of multi-national retail businesses will attract other commercial groups to the City. (2,p35) A number of large manufacturing enterprises and growth in the services sector are planned for Warrnambool which will provide a boost to local employment. (2,sp35 - CS) The dairy industry continues to be important in the western district with a number of important milk processing plants being located in and around Warrnambool (CS).
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Increased commercial development within the Eastern Activity Precinct will increase the attraction of this locality for residential development. (2,p35) The provision of additional retail opportunities within the Warrnambool City Centre and neighbourhood centres will promote demand for higher density residential development close to these centres. (2,sp35) Meeting the needs of the business services sector is recognised as important for the future prosperity of Warrnambool with a number of commercial sectors experiencing growth in recent years. (2,p35) Shopping at other commercial centres and on the internet will compete with the City Centre. (15,p13) There is a lack of office space within the Warrnambool City Centre (CS). There is a lack of sufficient zoned land to accommodate any future large industrial operation. (2,p35) There will continue to be an ongoing need for smaller service industries. (2,p35) Allansford has opportunities to accommodate a large industrial enterprise. (2,p35- CS) There will be continued growth of food industries, underpinned by the shift in Asian consumption patterns. (15,p13) Increasing economies of scale in agricultural production and manufacturing will be necessary. (15,p13) Tourism is an increasingly important part of the local economy. (CS)
The type of accommodation provided within Warrnambool will continue to be consistent with current estate development models, however, residential projects that offer an environmental rural lifestyle, with features such as golf courses or collective agricultural enterprises may also be proposed. (2,sp35)
The whale nursery will continue to attract eco-tourists in the winter breeding season. (CS) There is increasing pressure in coastal areas for new dwellings, tourism facilities and infrastructure. (s10W,p9- CS) There are development pressures occurring at the outskirts of Warrnambool including bulky goods establishments and associated signage on the main roads into towns. (s10W,p9- CS) Infrastructure
More effective on-site drainage and stormwater management will require increased open space provision. (2,p36 - CS) The values of receiving waters need to be protected from the impacts of polluted stormwater and overland flows. (4, sp4-CS) The rivers, creeks, lakes, floodplains and wetlands of the municipality have a range of values and beneficial uses for people as well as other environmental values which can be adversely affected by polluted stormwater. (4, p4 -CS) Water supply opportunities (in different forms) will provide the Warrnambool sub- region with a strategic economic advantage. (15,p13) Growth in information technology will shift supply chains and bypass existing retail/wholesale points. (15,p13)
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South West Water is able to extend water and sewerage infrastructure in various areas of the municipality. (21.03) The existence and extension of water and sewerage may affect settlement patterns. (s21.03) There are infrastructure costs associated with increased residential density in the City centre. (2,sp40-CS) Infill development in the City centre should be moderated in the short term and suitable service provision alternatives promoted. (2,sp40-CS). Development in the Mortlake Road area would benefit from the proposed arterial route near the Eastern Activity Precinct which would divert traffic from Mortlake Road and ease congestion (2,sp38,39-CS). Development contributions plans will facilitate appropriate infrastructure provision in terms of roads, drainage, utilities and community infrastructure. (2s,p50 -CS) There is, and will continue to be pressure on central City parking. (CS) Infill development which relies on access via laneways will need to be addressed. (CS) There will be an increased demand for community facilities within the identified growth areas. (CS) Flood mitigation works may need to be required in some areas. (CS)
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21.03 VISION - STRATEGIC FRAMEWORK
21.03-1 Council Plan 2004-2008
Vision The four elements of Council’s vision for Warrnambool in 2020 are:
Leading practice in regional City local government; Centre of a prosperous region of outstanding clean and green reputation; High quality lifestyle; and Learning and enterprising City. (15,p10) Council’s strategic objective under Natural and Built Environment is: To facilitate the planned development of our City, achieving high standards of amenity and environmental sustainability. (15,p22) Council’s strategic objective under Growing City is: To facilitate the balanced economic growth of our City, consistent with long-term sustainability, equity and benefits for the community of Warrnambool and South West Victoria. (15,p32) Guiding Principles Under these strategic objectives, the Council Plan includes Council’s ‘guiding principles’:
That the natural environment is one of humankind’s most important assets and must be preserved and enhanced. (15,p23) That an attractive built environment reflecting good urban design is fundamental to the City’s economic and social best future. (15,p23) That the City’s urban development is both economically and environmentally sustainable. (15,p23) That local heritage should be valued and protected. (15,p23) That a greater choice of housing is required to meet the changing needs of our community. (15,p23) That bio-diversity in the City should be protected and enhanced. (15,sp23) That leadership in good management of both the natural and built environment should be demonstrated. (15,sp23) That development should not be at the expense of the environment. (15,p23) That Council is committed to waste minimisation and resource recovery. (15,p23) That the use of indigenous plants be encouraged. (15,p23) That every member of the community benefits from a strong local economy. (15,p33) That the City’s long-term business success is dependent on maintaining a healthy environment and a high level of community well-being. (15,p33) That support and growth of small business is fundamental to the economic future of the City. (15,p33) That Council will support and facilitate the development of local businesses. (15,p33)
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That Council will focus on industries that are well-aligned to the natural competitive advantages of the region. (15,p33) That Council recognise the interdependent economic relationship between Warrnambool and the surrounding rural areas. (15,p33) That a healthy business environment is based on all sectors of the business community, tourism, industry, government and commerce working together. (15,p33) That tourism is a business that generates wealth and jobs for residents and is intrinsically linked to the prosperity of Warrnambool. (15,p33) That long-term success in the tourism industry is dependent upon promoting and preserving the unique natural environment. (15,p33) That Council will support the development of social capital via the involvement of individual and community groups in key events. (15,p33) That the environmental qualities and visual amenity of the foreshore be preserved. (15,p33)
21.03-2 Warrnambool Land Use Strategy, September 2004
Successive Councils established and continued a comprehensive strategic planning program known as ‘CityPlan’. The process commenced in 1991, and following extensive consultation and research, CityPlan was released in 1992. Following local government restructure in 1995, CityPlan was revised to include all areas of the new municipality. That document, produced in 1996, was subsumed into Council’s first MSS in 1999. (new) As a result of the three year review of that MSS in 2003, Council commissioned a comprehensive range of further strategic analysis and review, culminating in the preparation of the Warrnambool Land Use Strategy, (2004). The Land Use Strategy is the successor to CityPlan and is focussed on the residential, industrial and commercial development needs of the City over the next 20 years. (new) The key outcomes of the Land Use Strategy are shown on the following plan.
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21.04 OBJECTIVES – STRATEGIES – IMPLEMENTATION
The MSS relies on four themes for which strategic directions have been developed:
Housing; Environment; Economic Development; and Infrastructure
Each of these four themes is addressed in the MSS under the following headings: Overview: a brief overview of the topic area. Objectives: the general aims or ambitions for the future. Strategies: the ways in which the current situation will be moved towards the desired future to meet the objectives. Implementation: the means by which the strategies will be implemented. Further Strategic Work: a work program for Council to commission further research into specified areas. Other Actions: a list of other relevant background actions to be undertaken by Council or relevant agencies. Reference Documents: (at Clause 21.10) a list of local reports, strategies, and documents that contain relevant background research, recommendations and actions.
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21.05 HOUSING (CS)
21.05-1 Housing Overview
The Land Use Strategy provides the basis for the following commentary on Warrnambool’s residential development needs over the next 15 years. The Strategy also provides a synthesis of other investigations undertaken by Council relating to commercial and industrial development and this material has also been reflected in the MSS at Clause 21.07. Neighbourhood Character (CS) Central Warrnambool has increasingly become the focus for medium density redevelopment as urban consolidation is recognised as delivering important environmental, social and economic benefits. Within the inner residential areas there are buildings and streets of historic value and areas which combine a mix of housing some of which makes a substantial contribution to the overall quality and character of the area. Maintaining the overall character requires that new development respond to the site context and be effectively integrated with the existing architectural, historic and landscape character of Warrnambool. (2, sp23-CS) Redevelopment Areas The inner residential areas of Warrnambool offer potential for the continued construction of units and townhouses. This is expected to provide a limited but necessary supply of residential accommodation and add to housing diversity and choice. The potential for the redevelopment of brownfield sites, such as the Fletcher Jones and Woollen Mill site, is also an opportunity to consolidate residential and commercial land use within central Warrnambool. Other areas with redevelopment and infill potential are located in South Warrnambool and Merrivale, along main arterial routes and within Allansford and Dennington. (2,sp64) Warrnambool East (CS) Within the inner residential areas of Warrnambool, there is considerable scope for the continued construction of units and townhouses in selected locations such as near the Fletcher Jones site. Housing stock within Warrnambool East comprises well established high value, recently constructed housing (with limited redevelopment potential), as well as significant quantities of older housing without major character features, and limited site investment. Throughout the inner areas there is housing of heritage value that contributes to the overall streetscape quality and character. (2,sp40-CS) West Warrnambool Similar to East Warrnambool, this area is characterised by numerous areas of older housing stock with redevelopment potential, in addition to a number of heritage places. Strategies for residential development in this location are therefore consistent with those for East Warrnambool. (2,sp41) Warrnambool City Centre (CS) The re-development of the commercial core of Warrnambool for higher density housing will, in the short term, provide a limited supply of residential accommodation (particularly for short term and holiday accommodation). In the medium term, demand for this form of accommodation is anticipated to increase and in the long term extend into the nearby inner residential areas. It is recognised, however, that there are infrastructure costs associated with an increased density and until such time as a study has analysed this issue and these costs in detail (CS), infill development should be moderated in the short term and suitable service provision alternatives promoted (2,sp40). There are opportunities for shop top housing in the City centre (CS).
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Warrnambool South and Merrivale This area is characterised by a unique mix of recreational and residential land uses. In addition to the areas of established housing, holiday accommodation and some pockets of rural land, it includes Lake Pertobe, the South Warrnambool wetlands, the Merri River, the Lady Bay foreshore and Warrnambool Golf Club (2,sp41). Several Design and Development Overlays have already been applied to this area in recognition of the natural features and village character of this area. While infill and redevelopment is desirable in the area it needs to be complementary to the inherent values of this sensitive landscape area. Opportunities exist for contemporary residential development within selected locations in Warrnambool South including the Woollen Mills site, land south of the railway line and an area of rural land on Younger Street. In addition the harbour area has potential to provide improved visitor services and port facilities (2,sp41-CS). There are development constraints in parts of this area including flooding, and the proximity to industrial land in Merrivale (CS). Transit Orientated Settlement Along the main arterial routes within Warrnambool, such as the Princes Highway and Mortlake Road there is considerable capacity for more intensive forms of residential development. However, this will require consideration of neighbouring industrial or commercial uses to minimise amenity issues. Future redevelopment should be focussed along these routes and within 500 metres walking distance along each side of the road corridors. Given the exposure of these sites to main roads, it will be important to ensure a high standard of building design and landscaping (2,sp38 & 41-CS). Development in the Mortlake Road area would benefit from the proposed link road (CS) near the Eastern Activity Precinct which would divert traffic from Mortlake Road and ease congestion. It would also support further development of the nearby Russells Creek recreational corridor. (2, sp38, 39-CS) Greenfield Development Areas As part of the identified 15 year land supply forecast, the development of nominated greenfield sites provides an opportunity to develop a variety of dwelling types with varying development densities. The use of smaller lot sizes and housing close to community services will be particularly appropriate for the ageing and student populations. Structure planning of these areas and the application of appropriate development controls will ensure that these areas are developed in a sustainable manner and make a positive contribution to Warrnambool as a whole. Developer contributions plans will also facilitate appropriate infrastructure provision in terms of roads, drainage, utilities and community infrastructure (2s,p50). North East Corridor The north east corridor is that area generally bounded by Aberline Road to the east, Mortlake Road (Hopkins highway) to the west, Dales and Whites Roads to the south and land north of Wangoom Road to the north (CS). Residential growth within the north east of Warrnambool will primarily take the form of detached and semi-detached dwellings on a variety of lot sizes with a potential yield of 700 lots to meet demand within the immediate 15 years. The land on the corner of Wangoom and Mortlake Road represents a valuable opportunity to create community focal points offering retail, recreational or community services Convenient access to the Eastern Activity Precinct would also be available, particularly with the introduction of the north south road linking Raglan Parade and Dales Road (2,sp52- CS). The area immediately north of Wangoom Road is also identified for longer term residential development, given that the land is already fragmented and has low agricultural value. This land would adjoin a vegetated buffer between the developing residential areas and high quality agricultural land to the north. It is important that this agricultural land is protected from encroachment (2,p52). The area north of Dales Road is included as part of the 15 year land supply and is in close proximity to the Eastern Activity Precinct and the recreation reserve on Aberline Road. The land is able to be readily serviced with water and sewage and would support the development of a community focus at the Brierly site (2,p52) MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 15 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE] LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
It will be important to set a strategic direction for the area through a structure plan to establish the composition and framework for future residential use and provide direction for establishing local community services such as child care, shops and small service businesses. This plan will be important, even if the implementation of development does not proceed immediately (2,sp38). Coastal/Hopkins River Environment Urban expansion east of the Hopkins River will involve utilisation of greenfield sites including approximately 450 lots. A creative solution is required for the development of this area which may result in higher densities within some parts of the site offset by environmental benefits including large areas of open space, revegetation and transfer of the primary dune to public ownership (CS). While an overall density of 4 or 5 dwellings/hectare may be achieved this will be contingent on structure planning based on achieving environmental outcomes (CS). This location is a unique residential area within Warrnambool, with coastal and river views and would be suited to a more selective residential market segment. Preservation of landscape qualities and managing environmental sensitivities, particularly the dune area, Hopkins River frontages and ridgelines (CS), will be of primary importance. Further investigation is required to determine the extent of development together with comprehensive design and siting required prior to approval (2,p56). To ensure that the coastal environment south of Hopkins Point Road and east of Logans Beach is protected, no further residential (CS) development should extend east beyond the ridgeline or Deakin University. Development at a range of densities is to occur to the north of Hopkins Point Road with high quality design features encouraged, including the preservation of views from the river to land and a substantial river edge reserve (2,p56). Logans Beach The Logans Beach area is of national importance for the viewing of the Southern Right Whale. In addition, the area is a locality of high environmental and landscape amenity, and an important entrance to the City. It has some capacity for further development, provided various constraints affecting the area are properly managed and respected (8,sp5). There is ongoing development pressure in Logans Beach for residential infill. Previous building activity in the area has resulted in some intrusive developments that do not fit in with the environment and lifestyle. Likewise there are good local examples of built elements which can be used as guides to achieving better building design. In order to address these issues, Council will continue to implement the Logans Beach Urban Design Guidelines (8,sp2) including the retention of existing densities of 6000m2 (CS). Dennington and North Dennington Urban expansion within the existing rural area north of Dennington and delineated by the Merri River provides an opportunity for highly sustainable and liveable urban design outcomes. Detached housing will be the dominant housing stock, however at higher densities than current residential development, estimated to yield approximately 400 lots. These areas will be enhanced by a rehabilitated Merri River corridor with open space areas for passive recreation, riparian habitat preservation and management of stormwater runoff. This expansion area will be supported by the existing Dennington community which may justify the introduction of additional commercial and community services. The area can be readily serviced through extensions to existing water and sewage systems, however, the lower level land would require the installation of a new sewerage pump station (2,58). North of the Merri River The area north of the Merri River in the vicinity of Wollaston Road is a large area of land, with the potential to meet residential demand beyond the immediate 15 year land supply. In the long term, the site could potentially accommodate approximately 750 lots, subject to further detailed structure planning. Within the immediate 15 year timeframe, residential development of 400 lots to the north of the Merri River will provide housing opportunities for a variety of market segments, from high quality fully detached dwellings to smaller townhouse developments. Given the size of the area, multiple land ownerships, and environmental and landscape issues, there is a need for comprehensive structure planning and effective staging. Detailed siting and design plans will be required prior to approval, MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 16 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE] LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
taking into account the landscape and environmental qualities of the locality. (2,62). There is the potential to enhance a rehabilitated Merri River corridor with open space areas for passive recreation, riparian habitat preservation/rehabilitation and management of stormwater runoff (CS). Eastern Activity Precinct (EAP) The EAP is located at the eastern extent of Warrnambool to either side of Raglan Parade (Princess Highway) between Horne/Mahoneys Road to the east, the Gateway Church to the west, the Hopkins River to the south and Dales Road to the north. It has been identified in the adopted Eastern Activity Precinct Structure Plan (CS) as a major growth corridor and one of the primary locations for development and consolidation of mixed retail, residential and business uses (12,p3). It is envisaged that concentration of residential development surrounding the EAP will utilise the North South Road and a link road. (2,p38 - CS) Additionally there are drainage and infrastructure issues associated with further development in this area, particularly beyond the ridgeline (2,p38). Outlying Settlements Limited growth is to be directed to the rural townships of Allansford, Bushfield and Woodford, whilst ensuring that a greenbelt is maintained between these settlements and Warrnambool City and having regard to preservation of the Merri River and Hopkins River environs of high environmental value. These areas provide alternative housing styles on larger allotments and opportunities not provided within the Warrnambool urban area. Consideration is to be given to facilitating the provision of supporting infrastructure such as bicycle/pedestrian paths and local retailing. In order to provide specific guidance to the future development of Bushfield and Woodford, the preparation of a Structure Plan or Urban Design Framework for these areas is required (2,sp65 - CS). Allansford The direction for future development and land use within Allansford has been set by the Allansford Urban Design Framework, (2003), which addresses matters including town boundaries, town entry, traffic and transport, pathway systems, the recreational reserve and residential development. Higher density residential development is to be encouraged around the east and west nodes of the town, with progressive expansion into the Low Density Residential Zones. Once developed, these low density residential zones can be progressively rezoned to Township when connected to sewer (CS). In addition, the industrial area located in East Allansford will be expanded to accommodate demand for industrial land and major industrial enterprises (2,p39). Bushfield and Woodford The outlying settlements of Bushfield and Woodford have experienced considerable residential development in recent years. Although the low density rural character should be maintained, the provision of appropriate supporting infrastructure, including retailing and public transport, would create a more sustainable community. Urban expansion should be limited to within the Rural Living Zone and the Low Density Residential Zone (CS), however, opportunities for higher density township type developments should be considered. A review of the extent of the Rural Living Zone is required given the extensive amount of land in this zone (2,sp42- CS). Residential Land Release Timeframes An immediate land supply for the forecast 15 year period has been nominated within the specified growth areas of the North-East Corridor, Dennington, the Coastal/Hopkins River area and part of the North Merri River area. Development of the inner areas are also included as part of the 15 year land supply. As shown in the Land Use Strategy, land has been nominated for short to medium term residential development to satisfy the 15 year land supply requirement based on a land take up rate of 192.5 lots per year. The availability of this land for development will however, depend on the completion of considerable strategic work and statutory processes prior to release of land onto the market. The Land Use Strategy includes a 5 year planning program to be enacted prior to the release of land for development, taking into account these preliminary planning processes.
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The key tasks of this program have been included as ‘further strategic work’ in this MSS. (2,p70) The staging of subdivisions within the growth areas should allow for the orderly extension of services, giving priority to areas that can utilise existing infrastructure and require lower levels of investment in new infrastructure. Once the designated growth areas have reached approximately 40% to 60% capacity, alternative areas nominated on the Land Use Strategy should be considered for development. These lots should become available for development when other areas reach 80% capacity. An annual audit of land development rates will be undertaken to monitor the rate of land sold (CS) and hence the need for additional land to be made available (2,p70).
21.05-2 Housing (CS) Objectives
To achieve a sustainable urban form. (2,16) To achieve urban design of the highest standard (15,sp23) To provide opportunities for affordable housing (2,p24 - CS) To provide for access and mobility (2,p28) To develop neighbourhoods with a strong focus on community access and safety (15,sp23) To provide a diverse housing stock to meet the range of household needs. (15,sp23) To consolidate new residential areas (2,p22) To protect the City’s natural and built heritage. (15,sp23) To maintain neighbourhood character (2,p23) To protect productive rural areas. (15,sp23) To manage the agricultural interface (2,p25) To protect the coastline and waterways(2,p25,27) To protect development from flooding (1, synthesis of various references) To protect sensitive uses from adverse impacts of industry and other uses (1, synthesis of various references). To provide adequate separation between incompatible uses (1, synthesis of various references). To ensure that rural living and low density residential development are environmentally sustainable. (1,From existing Clauses 21.08 and 22.01-4) To develop the Princes and Hopkins Highways and Caramut Road as major boulevard entrances (1,From existing Clause 21.11 – Objective -CS)
21.05-3 Housing (CS) Strategies
General
Contain growth within the urban growth boundary as identified on the Strategic Framework Plan (CS). Discourage rural living and low density residential subdivision where it would prejudice long-term residential development (1,From existing Clause 21.08). Encourage rural living and low density residential development only in areas zoned for those purposes (1, From existing Clause 21.08).
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Neighbourhood Character (CS)
Protect the character of the existing residential precincts (2,sp64). Encourage the preservation of existing historic buildings and the use of high quality site responsive design. (2,sp64) Preserve existing character and heritage qualities of inner Warrnambool (2, sp23-CS). Ensure that new development responds to site context (2, sp23-CS). Integrate new development with the existing architectural, historic and landscape character of Warrnambool (2, sp23-CS). Ensure that building heights maintain view lines to the coast (2, sp23-CS). Ensure that building heights respect the scale and character of existing buildings (2, sp23-CS). Encourage development that contributes to an active street frontage by use of porches, low front fences and shop fronts (2, sp23-CS). Redevelopment Areas Inner Warrnambool (CS)
Ensure that the selective redevelopment of sites for units and townhouses complements the area’s heritage character and incorporates appropriate design standards. (2,p40) Improve streetscapes (2,p40). Achieve high quality unit and townhouse development (2,sp44). Protect neighbourhood character (2,sp44). Promote some mixed use and office opportunities in Warrnambool East in areas such as Banyan St. (2,p44 - CS) Promote view sharing between properties (CS). Limit development heights to maintain coastal view lines from public spaces and respect scale and character (2, sp23 – CS). Warrnambool City Centre
Support development that contributes to a more vibrant, attractive and liveable place for residents and visitors (5,sp19 - CS). Enhance pedestrian amenity, lifestyle choice, identity and appearance (5,sp23) Support higher density residential use in association with commercial use (2,p44). Support moderate infill development in the short term pending further investigations of infrastructure restrictions (2,p40). Implement the Warrnambool City Centre Urban Design Framework (2001) (2,p64). Warrnambool South and Merrivale
Support site responsive residential and mixed use infill and redevelopment (2,sp45). Ensure that infill and redevelopment are complementary to the inherent values of this sensitive landscape area (2,p41). Encourage contemporary residential development within selected locations in Warrnambool South (2,sp41).
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Transit Oriented Development
Support unit and townhouse development along major arterial routes (2,sp45). Encourage an increased density of development along these routes and within 500 metres walking distance along each side of the road corridors (2,sp37,38). Achieve a high standard of building design and landscaping along transport corridors in recognition of the level of exposure to these main roads (CS). Encourage future redevelopment along Mortlake Road around the Northpoint centre to take advantage of this main access route off the Princes Highway and other major infrastructure (2, p37,38). Greenfield Development General
Apply an urban growth boundary to identify the limits of urban growth (CS). Encourage a range of uses to locate around community nodes to cater for relevant sectors of the community (2,sp50). Encourage urban design that enhances the streetscape and promotes activity in the public realm (2,sp50). Incorporate solar oriented allotments and other sustainable design features (2,p50). Incorporate indigenous plant species and Water Sensitive Urban Design as part of subdivision, site layout, design and landscaping schemes for new developments (2,sp50 -CS). North East Corridor
Create identifiable foci for residential communities that are located at a less convenient walking distance from existing centres (2,p38). Provide pedestrian and cycling access as alternative means of transport, incorporating high standards of amenity and safety (2,p38). Provide additional land for future community facilities in the design of residential areas (2,p38). Incorporate drainage management requirements as a landscape feature near Russells Creek as part of subdivision approval (2,p52). Provide more affordable accommodation opportunities through the designation of a range of housing styles as well as higher density housing such as townhouses, aged persons accommodation and commercial accommodation (2,p52). Protect agricultural land beyond the urban growth boundary (2,p52 - CS). Encourage higher residential densities in the area north of Dales Road and incorporate Water sensitive urban design treatments within subdivisions and streetscapes (2,p52 -CS). Incorporate appropriate edge treatment of low density residential area north of Wangoom Road, including native planting that allows viewlines between the urban and rural areas (2,p55). Retain the existing Rural Living Zone and Rural Zone north of Wangoom Road, until 80% of the land south of Wangoom Road is developed (2,p52- CS). Develop the area in accordance with a Structure Plan which implements the North East Corridor Outline Plan included in this clause (2,p53 -CS). Insert North East Corridor Plan (2,p53)
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Coast/Hopkins River Area
Encourage development that is clustered together to provide for large areas of public open space, environmental linkages and the protection of ridgelines and significant flora and fauna species that demonstrate key environmental benefits (CS). Promote land use and development south east of Hopkins Point Road which results in net environmental benefit to the coast (2,sp44). Encourage environmental housing with a substantial river edge reserve, north of Hopkins Point Road (2,p44). Retain the low density residential nature of the Logans Beach area (2,sp44 - CS). Establish a clear eastern boundary at the ridgeline on the south side of Hopkins Point Road and in line with Deakin University at the northern side of Hopkins Point Road as shown by the urban growth boundary (2,p44 - CS). Preserve the environmental values and landscape qualities of the area (2,p39). Require the preparation of detailed siting and design schemes that demonstrate net environmental benefits resulting from any form of proposed residential development (2,p39). Require the identification of building envelopes which respond to the visual and environmental context of the site (CS). Protect the ridge line, coastal and river systems when considering any form of development (2,p39). Encourage development densities that are not necessarily uniform, but respond to a visual and environmental assessment of potential development impacts (2,p39). Require subdivision with buffer areas that afford effective protection of the environmental values of the coast and river environments from impacts such as stormwater, septic discharge and domestic animals (2,p39 - CS). Require building and site design to blend into the landscape (2,p39 -CS). Ensure that the staging of development provides for the most effective roll-out of infrastructure (2,sp58). Ensure that future development does not encroach upon significant flora, fauna and cultural heritage assets (2,p57 -CS). Develop the area in accordance with a Structure Plan that implements the Coastal/Hopkins River Environment Outline Plan included in this clause (2,p56 - CS). Insert Coastal/Hopkins River Environment Plan (2,p56) Dennington and North Dennington
Maintain and reinforce the existing community structure at Dennington (2,sp45) Ensure that land use and development enhance the river environment at North Dennington (2,sp45). Establish a 500 metre buffer zone between the saleyards/industrial area and nominated residential areas of North Dennington, possibly incorporating pedestrian/bicycle link and low impact light industrial uses and uses associated with the business park (CS) (2,p45,59). Develop the area in accordance with a Structure Plan that implements the Dennington/North Dennington Outline Plan included in this clause (2,p61 - CS).
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Insert Dennington/North Dennington Plan (2,p61) North of the Merri River
Promote residential land use and development with net environmental benefit (2,sp43). Protect the high environmental and landscape values in the area north of Merri River and south of Wollaston Road (2,sp37). Encourage development that is clustered together to provide land for large areas of public open space (utilizing the floodplain), environmental linkages and the protection of ridgelines (2,p62). Establish a clear boundary to further urban expansion that protects the viability of nearby agricultural land (2,p62). Encourage public access along the river frontage, and the provision of walkways and bicycle paths throughout the precinct (2,62). Ensure that future development does not encroach upon flora, fauna and cultural heritage assets (2,p 63). Develop the area in accordance with a Structure Plan that implements the North of the Merri River Outline Plan included in this clause.(2,p62 -CS). Insert the North of the Merri River Plan (2,p62) Eastern Activity Precinct (EAP)
Establish the EAP as a vital and recognisable mixed use urban extension to the City, comprising integrated retail, business, residential, tourism and recreational facilities (12,s p5). Encourage creative and innovative design that provides high quality residential living environments (2,p38). Provide more affordable accommodation as well as a range of higher density housing such as townhouses, aged persons accommodation and commercial accommodation (2,p38). Require that the presentation of new developments along the highway frontages makes a positive contribution to the appearance of the area (2,p38). Introduce a defined ‘gateway’ to demarcate an entrance point and make a statement about the significance of the City (2,p38). Implement the recommendations of the Warrnambool Eastern Activity Precinct Structure Plan (2004) Insert structure plan Outlying Settlements Allansford
Support gradual residential expansion centred around existing nodes (2,p44). Implement the Allansford Urban Design Framework, (2003) (9) (insert the Allansford UDF framework plan) Bushfield and Woodford
Maintain the existing rural lifestyle setting (2,p46). Limit the extent of low-density residential development in recognition of the absence of sewerage infrastructure (1,from existing Clause 22.01-6).
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Discourage obtrusive development on ridgelines and hilltops (1,from existing Clause 22.01-6). Maintain local community and commercial services in the township (1,from existing Clause 22.01-6). Limit the impact of residential development upon adjacent farmland, with the Rural Living Zone being managed as an effective buffer between residential areas and surrounding farms (1,from existing Clause 22.01-6). Limit further development on the northern side of the Merri River from the main area of Bushfield and Woodford (1,from existing Clause 22.01-6). Monitor the impact of further residential development upon the water table (1,from existing Clause 22.01-6). Encourage limited rural living and low density residential development within existing zoned areas around Bushfield and Woodford (1,from existing Clause 22.01- 6). Maintain the current lot size average for lots within Rodger Place to ensure the semi rural aspect and environmental quality of the area (CS). Logans Beach
Implement the Logans Beach Urban Design Guidelines. Implement the Logans Beach Local Plan, (1998) (8,p5). Residential land release Timeframes
Implement the residential staging plan within the Warrnambool Land Use Strategy, (2004).
21.05-4 Housing (CS) Implementation
These strategies will be implemented by: Using zones, overlays, policy and the exercise of discretion
Applying appropriate zones and overlays. Applying the Building Construction in Low Density Residential and Rural Living Zones local policy at Clause 22.01-1. Applying the Logans Beach local policy at Clause 22.01-2. Applying the South Warrnambool Village and Entrance Precinct Area local policy at Clause 22.01-3. Applying the Warrnambool Foreshore Precinct Area local policy at Clause 22.01-4. Applying the Lake Pertobe Precinct Area local policy at Clause 22.01-5. Applying the Breakwater Harbour Precinct Area local policy at Clause 22.01-6. Applying the Escarpment Park Precinct Area local policy at Clause 22.01-7. Applying the Sewerage Treatment Plant local policy at Clause 22.04-1. Applying the Urban Floodway local policy at Clause 22.02-1. Applying the Steep Land local policy at Clause 22.02-4. Applying the Hilltop and Ridgeline Protection local policy at Clause 22.02-5. Applying the Fire Protection local policy at Clause 22.02-7.
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Applying the Heritage Precincts local policy at Clause 22.02-8. Applying the Industrial Development local policy at Clause 22.03-1. Applying the Excisions of Dwellings in the Rural Zone local policy at Clause 22.03- 2 Applying the Saleyards local policy at Clause 22.04-2. Applying the Premier Speedway local policy at Clause 22.04-3. Applying the Lake Gillear Sporting Area local policy at Clause 22.04-4.
Undertaking Further Strategic Work General
Develop a policy for gateways and boulevards into Warrnambool (1, Clause 21.11). Obtain appropriate public open space as nodes at selected locations along the Hopkins and Merri Rivers, as part of the subdivision approvals process (1, From existing Clause 21.08 – Overview and Strategy and Clause 22.01-6). Undertake an annual audit of land development rates to monitor the rate of land take up and hence the need for additional land to be made available (2,p70). Greenfield Areas
In accordance with the recommendations of the Warrnambool Land Use Strategy, (2004), prepare Structure Plans, Development Contribution Plans and introduce appropriate planning scheme amendments for the following areas - North East Corridor - Coastal/Hopkins River Environment - Dennington/Dennington North - North of Merri River (2,sp 52-63)
Prepare an Urban Design Framework for Dennington/Dennington North in accordance with the recommendations of the Warrnambool Land Use Strategy, (2004) (2,sp59). Evaluate sites within the Coastal/Hopkins River Environment and North of the Merri River to more accurately identify existing environmental features including flora and fauna, and cultural heritage (2,p57, 63). Redevelopment Areas
Conduct neighbourhood character assessments and prepare neighbourhood character statements in accordance with the recommendations of the Warrnambool Land Use Strategy, (2004) (2,p64). Prepare urban design guidelines for the established residential precincts to promote high quality design responses that recognise neighbourhood character (2,p64 -CS). Identify candidate sites for medium density housing redevelopment within the urban area which may become available in the future (2,p65). Investigate the use of rural pockets of land within the inner area for future residential use in accordance with the Land Use Strategy, (2004) and the Warrnambool City Centre Urban Design Framework, (2001) (2,p65 -CS). Identify existing brownfield sites with redevelopment potential and assess their potential for future re-use for low cost housing or commercial floor space (2,p65).
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Outlying Settlements
Prepare an urban design framework or structure plan for Bushfield and Woodford (2,sp46,65). Review the extent of the Rural Living zone at Bushfield and Woodford (CS). Other Actions General
Encourage principles of sympathetic design to any expansion or additions to TAFE to maintain the integrity of the heritage buildings (1, Clause 21.11 - Strategy). Promote opportunities to incorporate more sustainable housing design that improves energy efficiency and reduces water consumption. This could include distributing information on solar oriented design techniques or managing cost rebates for solar hot water systems (2,p54,55 & 59). Promote opportunities to provide for access to buildings/houses and mobility for the frail and physically disabled or people with young children (2,p55, 59). Increase awareness of adaptable housing standards through training and education programs for stakeholders (2,p57 & 63). Dennington/North Dennington
Establish a river reserve (2,p45). North East Corridor
Support opportunities for the provision of education and community facilities, rationalisation of existing facilities or the utilisation of combined facilities.(2,p55). Retain a portion of Russell Creek frontage as a public reserve (CS). Coastal/Hopkins River Environment
Retain the valuable dune and cliff areas through designation as a public reserve in association with proposed rezoning (2,sp57-CS). North of Merri River
Retain a portion of the Merri River frontage through the designation of a public reserve in association with proposed rezoning (2,p63). Redevelopment Areas
Conduct workshops with members of the development industry and Council staff to provide guidance in appropriate urban design initiatives (2,64).
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21.06 ENVIRONMENT
21.06-1 Environment Overview
Sustainability The principle of a sustainable urban form is that the needs of the current generation are provided for without compromising the needs of future generations. A sustainable urban form is a compact urban environment that encourages increased public transport patronage as well as walking and cycling, has substantial benefits in reducing reliance on motor vehicles and has a consequent reduction in greenhouse gas emissions (2, sp16,18 – CS). Council is committed to Ecologically Sustainable Development (ESD) principles especially in relation to water conservation, the minimisation of greenhouse gas emissions, protection of biodiversity assets and the protection of natural coastal resources (CS-DSE). Biodiversity and Native Vegetation Warrnambool’s natural environment reflects its location on the magnificent Southern Ocean Coast. Inland, the municipality is affected by distinctive land form types: coastal dunes, basalt plains, stony rises and scoria cones. Some of the limestone cliffs, steeper earth slopes and coastal dunes along the main rivers and coast are susceptible to land slip (1, MSS 21.09 – CS). The Warrnambool region is home to a number of threatened species of flora and fauna on land and in aquatic environments. Sites of Victorian Rare or Threatened Species have been identified and there is a need to protect these sites from development and use that would have an adverse impact (Existing Clause 22.02-2). DSE and Council have now prepared some detailed flora and fauna biodiversity mapping and it is intended to introduce this into the planning scheme in a subsequent amendment. It is important that changes in land use and development do not threaten these sites (CS). The major threat to biodiversity is the destruction of habitat. Extensive clearing of native vegetation in the years since European settlement has drastically reduced the extent and quality of habitat for native species. While salinity has been recognised as a natural feature of the region, extensive clearing has greatly increased the areas affected and has the potential if unchecked, to further reduce suitable habitat in aquatic and terrestrial environments. The region is considered one of the areas most at risk from rising water tables and dryland salinity. Introduced plants and animals also impact heavily on native biodiversity. (16, p7) Outcomes associated with agricultural activities, such as the nutrient enrichment of waterways, can also have a severe impact by increasing the occurrence of algal blooms. Within marine environments, the greatest threats to biodiversity are related to activities in the catchment (16, p7). Waterways Land was subdivided in Warrnambool and other parts of the western district prior to the 1881 declaration of ‘Crown frontage’ along rivers and the coast, resulting in a legacy of private ownership of land along the Hopkins and Merri Rivers and much of the coastline east of the entrance of the Hopkins River and west of the Merri River (CS). The Hopkins River has its headwaters in the Great Dividing Range, reaching the coast at Warrnambool. At this location, it is a wide river in a steep valley, providing Warrnambool with impressive views across the river and estuary, and adding value to the properties in this area. Indigenous groups still use the River for food and water, and it has spiritual and cultural significance. Water quality in the Hopkins River is generally poor and algal blooms of significant size and duration have been recorded in the estuary. Nevertheless, the River still supports a range of aquatic life including large numbers of bream and perch and it retains environmental values (4,p5-CS). It also provides an important linkage between the City Centre and Deakin University (2,sp27).
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The Merri River loops around the north and western parts of the City, and the river cutting passes through the south western area. It provides aesthetic value to parts of Warrnambool and is linked to a number of wetlands that have high environmental values. Kelly and Saltwater Swamps are large wetland areas that were the original river outlets. The South Warrnambool Wetlands are near the current mouth of the Merri River and have regional geologic, flora and fauna significance, as well as local recreational value. The River itself has some poor water quality characteristics, but has environmental value for supporting native species (4,p6). It has been adversely impacted by urban activity and requires suitable enhancement and restoration for it to become a more valuable component of the surrounding urban areas. These wetlands and connecting floodplains form a highly significant coastal wetland system often serving as a ecological ark for fauna species from inland drought affected regions. They also provide important habitat and corridors for terrestrial species such as the black wallaby. They area also important habitat for many JAMBA and CAMBA, FFG and EPBC listed species (CS). Activities within the saleyards site generate significant volumes of effluent which require appropriate treatment to avoid adverse river impacts (2,p27). The river system provides resources and has cultural significance for the local indigenous communities. Old bridges and a weir in the river also have heritage values.(4,p6) Russells Creek is an intermittent creek that is located entirely within the City of Warrnambool. The creek is generally in a poor condition. The upper reaches are in rural land and the creek has been degraded as a result of stock grazing and access to the Creek. Housing estates border the creek corridor in most of the lower reaches, but there are several agricultural areas within the lower floodplain. Despite its current condition, it is considered that Russell Creek has very good potential to be improved and to provide amenity values that would benefit the many residential properties in its catchment. The environmental values could be enhanced both in terms of the riparian vegetation, in stream rehabilitation (pools, rifles and runs) and improved stormwater quality (CS). The upper part of the catchment is the designated growth area for Warrnambool and much of the land will be developed for residential housing. This greatly adds to the potential for improving the values of the creek (4,p6). Housing along Russell Creek is an example of development within the floodplain that does not include a substantial reserve (2,p27). Lake Pertobe is one of Warrnambool’s main tourist attractions and is located centrally in the City. Lake Pertobe comprises 3 lakes, one of which is man-made, and the area was originally linked to the coast and received wash-over from Lady Bay. The lake is now connected to the Merri River through a narrow canal outlet. The two larger lakes (Mill and Middle lakes) have high environmental values. Reed beds surround the lake margins providing habitat for birds (4,p6). Buffer zones and reserves need to be more consistently incorporated into new developments to enhance and preserve natural and heritage assets. There is a need to improve public access to rivers to promote the riparian areas as a recreational as well as environmental asset. Although some riverside reserves exist, there is a need to consistently provide public land frontages (2,p27). Flooding The flood plains of the inland waterways affect large areas of land throughout the City and surrounding rural areas. Flood plains provide temporary flood storages as well as acting as nutrient sinks. Flood plains progressively fill and empty as the flood peak travels downstream. The proper management of flood plains protects the natural environment and properties located in areas subject to inundation (1, From existing Clause 21.09- CS). Filling on floodprone land can give rise to a number of problems including changes to water flow regimes (CS). Glenelg Hopkins Catchment Management Authority has completed a flood study for Russell Creek and part of the Merri River floodplain. This study (North West Flood Study) and other flood studies under preparation, will inform a new amendment to the planning scheme in the next review period inclusive of a new strategic, zoning and overlay regime (CS).
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Fire Fire has played a significant role in the evolution of natural environments in the Warrnambool area. The vegetation communities are adapted to a fire regime and the management of these areas requires the use of fire for their health. Fire is also required to reduce the fuel loads so that a safe environment is maintained (1, From existing Clause 21.09). Coastal Landscape The City contains areas of great natural beauty. The rugged coastal cliffs, beaches, rolling inland hills and river valleys are highly regarded by the local population and attract many tourists. The Norfolk Pines lining the Princes Highway median and a number of other City roads are important local landscape features. There are numerous other significant exotic trees worthy of protection. The Botanical Garden has well documented heritage values. And the Lady Bay area is of outstanding cultural, environmental and recreational significance. The beach, Lake Pertobe and the breakwater area also have significant conservation and coastal recreation functions (1, From existing Clause 21.09). Warrnambool is situated on one of the most spectacular sections of the south-west Victorian coastline. Views from areas such as Thunder Point, Pickering Point, Point Ritchie and Flagstaff Hill take in the Southern Ocean, the high energy coastline and Lady Bay. The coast has significant historical and cultural values for both European and aboriginal heritage and is also valued highly for it’s environmental, recreational and tourism aspects (4,p7). While Council and the community are keen to maintain access to the beaches, this opportunity is restricted by portions of land in private ownership where public access cannot be provided. In areas where public access is possible, the fragile primary dune along the foreshore must be protected. Access requirements to the whale viewing area are likely to grow in the future as visitor numbers to Warrnambool increase with the realisation of tourism infrastructure redevelopment opportunities (2, p26). The Great Ocean Road Strategy (2003) is a 20 year land use and transport plan that seeks to protect the environment and promote sustainable development of the region which covers the area from Torquay to Warrnambool, south of the Princes Highway. The Strategy looks beyond immediate growth demands and sets a vision for the region that is based on economically, environmentally and socially sustainable development. It aims to preserve and enhance the region’s natural and built environment, to facilitate development of its prosperous economy and to maintain it as a prime visitor destination. To achieve this vision, the Strategy focuses on the four key issues of environment, settlement, access and prosperity (18, p1). A regional landscape character assessment was undertaken as part of the Great Ocean Road Region Strategy (2003). The Great Ocean Road Region Landscape Assessment Study (2003) identified assessment criteria for establishing landscape character significance. An analysis of broad landscape character types was undertaken, focussing on the distinctions between landscape character types and their capacity to accommodate different types of development. The key purpose of the assessment was to determine how development can be managed in different types of landscapes (10R). Steep land The municipality is affected by three distinctive land form types and resource management units being the Coastal Dunes, the Basalt Plains (north of the City) and the Stony Rises and Scoria Cones (to the east). Some of the limestone cliffs, steeper earth slopes and coastal dunes along the main rivers and coast are susceptible to land slip (1,s21.09). A significant problem is the existence of slopes in excess of 20 degrees where further development will be discouraged and removal of vegetation minimised (1,22.02-4).
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Heritage The heritage assets of Warrnambool include many significant cultural heritage sites, particularly along the coast and river valleys. Council recognises the need to appropriately protect Aboriginal sites. The City has a significant number of registered buildings and several notable historic precincts including church complexes, public buildings and areas of small stone and wooden cottages. A number of heritage buildings are protected in the Planning Scheme (1, From existing Clauses 21.08 and 21.11 and Clause 22.01).
21.06-3 Environment Objectives
Sustainability
To minimise greenhouse gas emissions. (2,sp16,18-CS) To protect natural coastal resources (2,sp16,18-CS). To promote water conservation principles (2,sp16,18-CS). To provide a compact urban environment (2,sp16,18-CS). Biodiversity and Native Vegetation
To maintain, enhance and protect the natural environment and habitats (15,sp23- CS). To achieve environmental sustainability (16,sp65). To maintain the region’s natural resource base (16,sp65). To achieve environmentally sustainable agricultural practices and uses (17, sp24). To protect, enhance and increase biodiversity on public and private land and in aquatic systems within the Glenelg Hopkins region (16, 72, objective). To maintain stable and healthy soil (16, sp85, objective). To improve salinity management (17, p17) To achieve net gain in native vegetation under the Victorian Native Vegetation Framework (CS). Waterways
To maintain and enhance the ecological health of the region’s water resources and waterways (16,p77). To reduce sediment and nutrients entering waterways (17, p17). To improve stormwater quality (4,p22). To minimise stormwater run-off in urban and rural areas (1, existing 21.09). To ensure that waste disposal systems for residential, industrial and commercial purposes are not detrimental to the environment (1, existing 21.09). To encourage restoration of degraded land, particularly stream frontages (CS). To ensure adequate buffers are provided between waterways and new development (CS). To improve public access to rivers (CS). To preserve, protect and rehabilitate riverine, wetland and floodplain riparian and in stream native vegetation (CS).
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Flooding
To maintain the integrity of the existing urban floodway (MSS – CS). To identify new floodway areas both inside and outside the urban area (MSS – CS) To protect private and public assets from the impacts of flooding (17, p23) To minimise the effects on natural waterways from changes to natural flow regimes (such as flood frequency, run-off volume and flow velocity) (7,p2). To ensure that flood waters do not present an unacceptable risk to the community (7,p2). Discourage the filling of land which is liable to flooding (1, From existing Clause 22.01-3). Fire
To reduce fire risks to the community (1, From existing Clause 21.09). Steep land To protect landscapes and landforms from inappropriate development (1,s21.09). To limit development on prominent ridges and hilltops (1, 22.02-7).
To discourage development on steep slopes (CS). Heritage
To protect and enhance items, places and areas of natural, built, cultural and indigenous heritage (1, From existing Clause 21.03 -CS). To promote the protection and appropriate management of aboriginal cultural heritage values (22.01-1). To acknowledge the importance of indigenous cultural heritage in the area (CS). Coastal Landscape (CS)
To protect and enhance coastal areas of the catchment (16, p91, objective). To provide opportunities for sustainable use and development along the coast (16, p91, objective). To retain and enhance landscapes of high scenic value (1, From existing Clause 21.09). To protect and enhance landscaping, including street trees, on all major approach routes, access roads and local streets (MSS – CS).
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21.06-4 Environment Strategies
Sustainability
Apply WSUD principles to urban development. (4,p22) Biodiversity and Native Vegetation
Discourage the clearing of remnant vegetation and habitat corridors in areas identified as habitat for Victorian Rare and Threatened Flora or Fauna species (Existing Clause 22.02-2 policy). Protect sites of significant flora and fauna (CS) Protect remnant vegetation on roadsides (17, p23). Protect sites identified on the DSE Biodiversity flora and fauna maps (CS). Require revegetation along river frontages and floodplains (CS). Maintain existing tree planting, and carry out appropriate landscaping on all major approach routes and local streets (1, From existing Clause 21.09). Protect all mature Norfolk Island Pines from removal and lopping (1s, existing 21.09 &22.01-10). Ensure new development is sited so that existing vistas throughout Warrnambool are not impeded (CS). Prevent the degradation of scenic landscapes along the coast, river valleys and inland ridge lines (CS). Contain the spread of noxious and pest weeds and progressively reduce the areas affected (existing Clause 22.02-5 objective). Waterways
Control urban run-off to protect and enhance waterways (1, From existing Clause 21.09 - Strategy). Exclude inappropriate development from degraded river banks and adjacent land areas (1, From existing Clause 21.09 - Issue). Discourage ribbon development along waterways (1,From existing Clause 21.09 - Overview). Minimise native vegetation removal along waterways (1,From existing Clause 21.09 - Overview). Ensure a net gain of native vegetation along waterways (CS). Establish a 20 metre wide public reserve on either side of waterways (CS). Establish a 40 metre wide reserve along both sides of the Hopkins River (CS). Provide public land frontages along waterways (CS). Require all development in coastal areas to have a minimum 40 metres reserve from the coast (CS). Protect Starlight Cave through low impact and low density land use and development (CS). Protect Lake Gillear environs and water quality (CS).
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Flooding
Utilise open spaces to act as floodway (2, p 27). Prevent development in floodway areas (1, From existing Clause 21.09 - Strategy). Discourage the filling of land which is liable to flooding (1, From last part of existing Clause 22.01-3). Ensure that when drainage and flood protection works are constricted, that existing habitable buildings are protected from flooding in major storms (7,p2). Ensure that new developments shall not have an adverse impact on downstream properties and environments in terms of flooding and water quality (7,p3). Implement the North Warrnambool Flood Study (2004) (CS). Fire
Ensure that new developments in the small settlements and the urban/rural interface are adequately designed and serviced to take into account the risk of uncontrolled fire (1, From existing Clause 21.11 - Objective). Develop and implement sensible fire management solutions (1, From existing Clause 21.09 - Objective). Steep land Ensure that use and development of land with a slope greater than 20% takes into account environmental constraints such as erosion and fire hazard (1,s22.02-6). Discourage development on slopes in excess of 20 degrees (CS). Minimise vegetation removal on land with slopes in excess of 20 degrees (CS). Heritage
Identify, protect and enhance Warrnambool’s heritage including individual buildings, heritage precincts, landscapes, trees and other items of cultural heritage significance (1, From existing Clause 21.08 – Objective and 21.11 - CS). Have regard to the current aboriginal heritage study document or aboriginal cultural resource management grid map and guidelines (CS). Liaise with the local aboriginal community where cultural heritage sites are threatened (CS). Coastal Landscape (CS)
Protect vantage points and viewlines from inappropriate development (2,p27). Identify and protect significant exotic and indigenous trees which contribute to the overall character of the City, including avoidance of removal and lopping of such trees to facilitate the construction of buildings and works and installation of utility services (MSS – CS). Use simple building details (10P,p4). Utilise colours and finishes that complement those occurring naturally in the local area (10P,p4). New buildings should be designed to respond to the characteristics of the site and locality, demonstrating a high standard of contemporary expression and finish (10P,p4). Ensure townships have a definite visual edge, delineating the boundary between urban development and the natural landscape beyond (10P,p5).
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Discourage ribbon development (10P,p5).
21.06-5 Environment Implementation
These strategies will be implemented by: Using zones, overlays, policy and the exercise of discretion
Applying appropriate zones and overlays. Applying the Building Construction in Low Density Residential and Rural Living Zones local policy at Clause 22.01-1. Applying the Logans Beach local policy at Clause 22.01-2. Applying the South Warrnambool Village and Entrance Precinct Area local policy at Clause 22.01-3. Applying the Warrnambool Foreshore Precinct Area local policy at Clause 22.01-4. Applying the Lake Pertobe Precinct Area local policy at Clause 22.01-5. Applying the Breakwater Harbour Precinct Area local policy at Clause 22.01-6. Applying the Escarpment Park Precinct Area local policy at Clause 22.01-7. Applying the Urban Floodway local policy at Clause 22.02-1. Applying the Potential for Groundwater Recharge local policy at Clause 22.02-2. Applying the Susceptibility for Mass Movement local policy at Clause 22.02-3 Applying the Steep Land local policy at Clause 22.02-4 Applying the Hilltop and Ridgeline local policy at Clause 22.02-5 Applying the Dams local policy at Clause 22.02-6. Applying the Fire Protection local policy at Clause 22.02-7 Applying the Heritage Precincts local policy at Clause 22.02-8 Applying the Wild Coast Precinct local policy at Clause 22.02- 9 Assessing all applications against the objectives, precinct development principles and landscape character significance of the Great Ocean Road Region Landscape Assessment Study (2003). Considering potential impacts on sites of aboriginal heritage significance when assessing use and development applications; and rezoning requests (1, From existing Clause 22.01). Where there is a known aboriginal archaeological site, request a report from a suitably qualified archaeologist detailing the impact of the proposal on the aboriginal cultural heritage values (21.01-1). Seek comment on the above report from the appointed aboriginal authority (CS). Use conditions and agreements to protect river frontages that do not have Crown reserves along the frontage for subdivision proposals in rural areas along the Hopkins and Merri Rivers (1, From existing Clause 21.09 -CS). Apply appropriate conditions, in consultation with DSE for applications on land identified as containing the habitat of a Victorian Rare and Threatened Flora and Fauna species (Existing 22.02-2 policy).
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Acquiring through development contributions and subdivision, land along the waterways within urban and rural areas to provide an open space corridor (1, From existing Clause 21.09 – Objective -CS). Undertaking further strategic work
Identify floodways and land subject to inundation and incorporate into the scheme (1, From existing Clauses 21.08 – Objective and 21.09 - Strategy). Undertake a flood study for Dennington/North Dennington to determine the extent of land subject to flooding surrounding the Merri River and identify land in the Planning Scheme (2,p59). Identify the extent of floodprone lands along the Merri River (CS). Undertake a study to identify and protect significant exotic and indigenous trees which contribute to the overall character of the City (1, From existing Clause 21.09). Investigate options for the development of an estuarine and coastal park network, including the redevelopment of the golf course (1, From existing Clause 21.09 – Overview and Objective). Hold further discussions with the CFA in relation to wildfire management and the most appropriate form of control for the City (1,From existing Clause 22.02-12). Undertake a heritage ‘gap’ study and extend the Heritage Overlay accordingly (1,From existing Clauses 21.08, 21.11 and 22.01-2). Undertake an amendment to the planning scheme to include the DSE Flora and Fauna Biodiversity mapping (CS). Review Design and Development Overlay 4 (DDO4) to take greater account of important views and vistas especially to the coast (CS). Undertake a detailed investigation into the feasibility of constructing a wetlands facility at the Warrnambool Racecourse (7,p44) Investigate the application of the Significant Landscape Overlay to the Western Coastal Cliffs Landscape as identified in the Great Ocean Road Region Landscape Assessment Study (2003) (10p,p14). Investigate the application of height controls in areas within the City where views are available to the coast (CS). Review all Significant Landscape Overlays along the coast to reflect the recommendations of the Great Ocean Road Region Landscape Assessment Study (2003) (CS). Investigate land that is susceptible to mass movement including all land which has a slope in excess of 20% and implement with an Erosion Management Overlay (CS).
Other actions
Consult with the Western Coastal Board concerning development on the coast in accordance with the Guidelines for Western Coast Regional Board involvement in the Planning Process (1,22.02-1 & 11,p 32, 33). Support the implementation of the Glenelg Hopkins CMA Regional Catchment Strategy (2004-2008). Support the implementation of the Glenelg Hopkins CMA Native Vegetation Plan (16, p126).
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Support the implementation of the Glenelg Hopkins CMA Regional Floodplain Management Strategy (13 –CS). Support the regional implementation of the Victorian Coastal Strategy (13 –CS). Support the development and implementation of Roadside Vegetation Plans (16,p127). Identify and manage soil erosion sites (16, p129) Integrate the Regional Catchment Strategy Action Plans with the MSS. (13 – CS) Protect internationally significant wetlands through implementation of the Western District Lakes Ramsar Site Strategic Management Plan (13 –CS). Continue identification of Regional Coastal Acid Sulphate Soils and implement management program (16, p129).
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21.07 ECONOMIC DEVELOPMENT
21.07-1 Economic Development Overview
Agriculture Agriculture is an important element of the regional economy. 11.8% of the work force is employed in the agriculture, fishing and forestry sector. Warrnambool is the centre of the growing South West dairy industry and over 20% of Australia’s milk is produced within the region, from approximately 2,300 dairy farms. Local farmers have the immediate advantage of proximity to processing plants and fertile soil and reliable rain fall. The region has opportunities for growth in the areas of viticulture, horticulture and alternative agricultural production. The preservation of the maximum amount of the limited supply of agricultural land is necessary for the conservation and sustainable development of the area and the State’s economic resources. The preservation of agricultural land in large areas is also necessary to sustain the agricultural economy of the area and to support those industries which rely on agricultural products for processing. The abattoir and saleyards are also key infrastructure and value adding elements to the City’s regional role in primary production (1, From existing Clause 21.10) Importantly, unplanned urban sprawl and growth into the rich farming land around Warrnambool may compromise the viability of the dairy industry and processing facilities (1, From existing Clause 21.08 – Overview). Industry The Warrnambool Industrial Strategy 2001 adopted a demand scenario to 2010 of 1.9ha per year for small lots (less than 1ha) giving a total of 19ha over the ten year period. The Strategy also made an allowance of 20ha for major enterprises (CS). Existing industrial enterprises including Nestle, the Saleyards, Midfield Meats and its rendering plant are of critical importance to the municipality and its townships (CS). The existing industrial area located in West Warrnambool (south of the railway line) will continue to provide for manufacturing industry, and the storage and distribution of goods and associated uses. The site at the corner of Watson Street and Braithwaite Street, West Warrnambool has also been identified as having potential for industrial development in the short term (2,sp66). An additional potential site is located in West Warrnambool, between Harrington Road and the railway line, provided that drainage issues are addressed (2,sp67). The livestock saleyards precinct on Caramut Road is the centre of a growing agricultural services area. It is acknowledged that the use of this facility is anticipated to continue during the 20 year forecast planning period, but may need further consideration in the longer term, beyond the current planning horizon (2,p42- CS). A buffer area of approximately 500 metres is required around the saleyards to manage its amenity impacts and allow for future residential growth to the north of Dennington (beyond the 500 metres). The buffer area should extend between Rooneys Road and Harrington Road to the west of the saleyards and 300 metres east of Caramut Road, incorporating open space areas and sensitively designed light industrial and business park developments such as service industry, larger scale offices, warehousing and storage (2,p67 - CS). There is potential, within the vicinity of the Eastern Activity Precinct, to satisfy additional demand for industrial and commercial activity such as warehousing, offices and smaller service industries (2,p67 - CS). Allansford has been identified as the most appropriate site for new industrial land to accommodate major industrial development and as having potential for a rail freight hub given its proximity to transport infrastructure and access to a labour force. An industrial business park is envisaged in this area (2,sp66).
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Commerce Land supply requirements for commercial activity will be met at the following locations:
Within the Warrnambool City Centre and the Eastern Activity Precinct, particularly for retailing and offices; (CS) Supplementary retailing within smaller centres such as Dennington and Northpoint; and Community, commercial and retail services at proposed nodes within the north-east corridor (as shown on the Land Use Strategy Plan at Clause 21.03-2) (2,p68) The Warrnambool Retail Strategy Update (2003) identified that there is potential for the provision of an additional 23,000 square metres (approximately) of retail floor space in Warrnambool by 2011, although this figure would be significantly higher and approaching 40,000m2 in total if all escape expenditure could be retained (3,p21). The Retail Strategy recommended that this new retail floor space be distributed on the following basis. Warrnambool City Centre: Allow 12,000m2 to locate in the City centre and at other sites which include the eastern approach to the City where this additional floor space would be appropriate in a retail and town planning context, and where such development would be supported by the Retail Strategy. This will include retail floor space for core retail activities (B1Z) and for bulky goods retailing (restricted retail premises in B4Z). Eastern Activity Precinct: Allocate up to 10,000 square metres over the next ten years taking into account current plans for the upgrade and expansion of the Centre by 5,000m2. It is anticipated that the Centre will seek the opportunity for further expansion in the next 5 to 15 years. Other Locations: Other retail development proposals could be considered where accompanied by a retail demand and impact assessment, and where there is evidence of growth in retail demand, with minimal impact on existing centres. This refers to possible future use of part of the Fletcher Jones site for a retail component, but not to include a major retail shopping centre complex. It also refers to the potential to develop the Northpoint locality with further convenience retailing including a supermarket to serve the expanding residential areas in this part of the City. The retail strategy supports up to 6000m2 of retail floor space within this vicinity (3,p21 - CS). The priority is to attract the appropriate retailers to locate in the Warrnambool City Centre and/or the Eastern Activity Precinct in order to ensure that the core (or essential) retail trading role of these key centres is reinforced and strengthened (3, sp22). Land for the purpose of accommodating bulky goods retailers exists at the eastern entry to Warrnambool, and the Retail Strategy recommended that additional land be rezoned for this purpose. The general locality will be the priority area for bulky goods development (3, sp22). There is also an opportunity to provide further convenience retailing at Northpoint (to a maximum of 6,000 square metres) to serve the expanding residential areas in this general locality (3, p22). The scattered location of new retailing will be strictly avoided in favour of reinforcing existing retail concentrations and areas designated for particular retail functions (3, sp23). There is at present only limited land available for office development within the Warrnambool City Centre (CS). There is also a lack of on site car parking in the City centre which will require the preparation of a parking precinct plan to identify and develop off street parking (CS). Tourism ‘Destination Warrnambool – Tourism Development Plan 2004-2007’ identifies the vision, opportunities, challenges and strategies for growth of tourism in the municipality (CS). Tourism is a significant economic driver in the region and Warrnambool has a range of natural and man made tourism attractions. These include the strong maritime and built
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heritage, the natural assets of the coast and beaches, the Great Ocean Road, the Lady Bay area and the presence of Southern Right Whales in winter. The Flagstaff Hill area is an important tourism and education asset that comprises the Maritime Village Museum and associated facilities, including restaurants and motels (1, From existing Clause 21.10). The Lady Bay area south of the City centre is a significant tourism asset and is to be promoted as a major foreshore precinct with several significant attractions and the opportunity for the well designed redevelopment of private land. The area in the vicinity of the breakwater is planned to be developed with limited commercial operations. The balance of the area is to be available as public open space with a range of recreational activities (1, From existing Clause 21.10). Opportunities exist for some coastal tourism development to the east of the City which would take advantage of the major scenic coastal opportunities while remaining sensitive to environmental and landscape values of the coast. The Lady Bay foreshore area and Lake Pertobe also provide significant opportunities for tourist oriented developments (2,sp39). The Performing Arts Centre and Art Gallery, located in Liebig Street in a Civic Precinct, provides a regional platform for cultural events and the Flagstaff Hill Maritime Museum is a significant community asset, operating as a tourist attraction and educational resource. A significant entertainment precinct including restaurants taverns and hotels is evolving, focused on the southern end of Liebig street, adjacent to the Civic buildings (1, 21.11-s- CS). The Performing Arts Centre and Art Gallery, located in Liebig Street in a Civic Precinct, provides a regional platform for cultural events and the Flagstaff Hill Maritime Museum is a significant community asset, operating as a tourist attraction and educational resource. A significant entertainment precinct including restaurants taverns and hotels is evolving, focused on the southern end of Liebig street, adjacent to the Civic buildings (1, 21.11-s-CS). Gaming Warrnambool has an extensive range of gaming venues and machines. Council wishes to control the number of venues and machines in Warrnambool, due to the significant social and economic impacts of gaming on the community (1, From existing Clause 21.11).
21.07-2 Economic Development Objectives
Agriculture
To maintain an economically viable and ecologically sustainable agricultural sector. (1, synthesis of existing clauses 22.02-9, 22.10) To support the diversification of agriculture, (1, existing 22.02-9) To support the development of agroforestry (1, existing 22.02-9) To support the processing of agricultural products grown within the municipality (1, existing 22.02-9). To prevent land use conflicts between agricultural uses and sensitive uses (1, existing 22.02-9). To ensure that use and development in the municipality is not prejudicial to agricultural industries or the productive capacity of the land (1, existing 22.02-9). Industry
To develop Warrnambool as a major food and dairy processing centre for Victoria (15,p33, 6,p60). To ensure that there will be an adequate supply of industrial-zoned land with appropriate servicing capability (2,p66, 15,p33).
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To encourage well planned industrial development with high standards of amenity, siting and design especially along major routes (1,From existing Clauses 21.10 and 22.03-3- CS). To protect the amenity of residential areas from the effects of industrial activity, while not impeding the productivity of industrial enterprises (1,From existing Clause 22.03-4). Commerce
To maintain Warrnambool as the primary retail centre of south-west Victoria (2,p28) To maintain the City centre as the pre-eminent commercial and tourism focus for the City and the region (5,p19). To consolidate future new retail development within the City centre and Eastern Activity Precinct (3,sp20). To support the emerging bulky goods focus at the eastern entrance to Warrnambool (3,sp20). Tourism
To develop Warrnambool as the recognised western gateway to the Great Ocean Road Region and as a hub for exploring South West Victoria (15,p33). To promote tourism in Warrnambool based on strategies for maritime, heritage, environmental and sporting assets (1, From existing Clause 21.10). Gaming
To minimise the social and economic impacts of gaming on the community (1,22.04-3).
21.07-3 Economic Development Strategies
Agriculture
Protect productive agricultural land from encroachment by uses which will limit the productive capacity of land (1, From existing Clause 21.10). Discourage the conversion of agricultural land to non-soil based agricultural use and development (1, from existing 22.02-8). Support the retention of agricultural land in productive units (1, from existing 22.02- 8). Discourage the fragmentation of agricultural land (1, from existing 22.02-8). Support sustainable agricultural industries which incorporate best management practice (1, from existing 22.02-8). Encourage agroforestry where it has the potential to assist in rectifying current landcare issues relating to vegetation/habitat loss, soil erosion and soil salinity (1, from existing 22.02-8). Discourage the unplanned expansion of urban uses and development into agricultural areas (1, from existing 22.02-8). Support intensive agricultural industries having regard to soil and water quality, the adequacy of infrastructure and the location of sensitive uses (1,22.02-9).
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Industry
Enhance all industrial areas through the development and maintenance of a high standard of landscaping (1, From existing Clause 21.10). Manage the interface between industrial and residential activities, particularly in regard to heavy vehicle traffic, industrial emissions, noise and visual setting (2,p66). Establish appropriate design and siting guidelines to ensure all industrial development along highways, particularly along the east-west entrances to the City abutting the Princes Highway is of an attractive visual standard (1,From existing Clause 21.10). Ensure sufficient industrial land is available for major enterprises (6,p60). Protect current saleyards enterprises (2,p46 -CS). Provide appropriate edge treatment to the saleyards to allow for residential infill (2,p46 -CS). Include buffer area of 500 metres west of the saleyards (2,p46). Expand the existing industrial area at Allansford to cater for large scale industry (2,p44 -CS). Implement the Warrnambool Industrial Land Strategy (2001). Commerce
Support proposals that would achieve further consolidation of retailing within the Warrnambool City Centre including upgrading the existing Coles site and redevelopment of the Target carpark (2,p69). Ensure the Warrnambool City Centre is presented in an attractive and functional way in terms of retail function and focal points, streetscape, heritage and car parking (3,sp20). Accommodate additional retail development opportunities at the Eastern Activity Precinct for bulky goods retailing and light industry (2,p68). Provide neighbourhood shopping opportunities at the Eastern Activity Precinct and immediate surrounds as a community centre (2,p68). Further expand the existing neighbourhood centre (Northpoint) on Mortlake Road, near Whites Road to service residential growth in this area with appropriate convenience retailing and services (2,p68). Facilitate the provision of local community facilities (CS) in the North East Corridor near Wangoom and Mortlake Road (2,p68). Support the potential for mixed use development at the Fletcher Jones site (2,p68- CS). Provide for future mixed use opportunities in the rural zone between Deakin University and the railway line and in Banyan Street, Warrnambool City Centre (2,p69- CS). Identify appropriate locations for both small and large scale office development (CS). Support the trend toward small scale office uses for professional services in locations that allow for easy access to a customer base and supporting services (2,p68). Implement the Warrnambool Retail Strategy Update, (2003) (2,p69).
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Implement the Warrnambool City Centre Urban Design Framework, (2001) (5, p72). Implement the Warrnambool Eastern Activity Precinct Structure Plan, (2004). Tourism
Increase the quality and quantity of tourist accommodation (15,p33). Develop the Warrnambool Harbour Precinct as a vibrant coastal recreation precinct (15,p33). Improve visitor services and port facilities in the harbour area (2,p41). Develop Flagstaff Hill as South West’s icon tourism facility (15,p33,6, p57). Strengthen the tourism retail precinct in the City centre (6, p57). Support coastal tourism development that is environmentally responsive and easily accessible from Warrnambool (2,sp68). Ensure coastal and river development optimise tourism potential in a manner that recognises the sensitive nature of these areas (1, From existing Clause 21.10). Provide for the development of foreshore facilities based on Warrnambool’s maritime heritage and environment (1, From existing Clause 21.10 - Objective). Facilitate the development of a recreation precinct in the Lady Bay area that recognises the sensitive nature of the area (1, From existing Clause 21.10 - Objective). Develop an entertainment precinct in Warrnambool based around the south end of Liebig Street (1, 21.11-s-CS). Gaming
Discourage any further increases in either/or gaming venues and machines (1, from existing Clause 22.04-3). In the event that a gaming venue ceases to operate, consider the replacement of gaming machines within a community based organisation, (eg. a sporting club), and not in a commercial premise (1, from existing Clause 22.04-3).
21.07-4 Economic Development Implementation
These strategies will be implemented by: Using zones, overlays, policies and the exercise of discretion.
Applying appropriate zones and overlays Applying the Industrial Development local policy at Clause 22.03-1. Applying the Excisions of Dwellings in the Rural Zone local policy at Clause 22.03- 2. Applying the Warrnambool and District Base Hospital Development Plan local policy. Clause 22.03-3. Applying the Saleyards local policy at Clause 22.04-1. Applying the Premier Speedway local policy at Clause 22.04-2. Applying the Lake Gillear Sporting Area local policy at Clause 22.04-3. Where industrial and residential zones are adjacent, any planning permit issued for a substantial residential or industrial use or development, or expansion of an existing development, will require the erection of appropriate fencing, screening, planting or
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similar visual and acoustic buffer on the common boundary between premises. A landscaping plan will be required to be submitted with such permit applications and the species and size at maturity of all plants are be specified by the applicant (1, From existing Clause 22.03-4). Undertaking Further Strategic Work
Prepare industrial building siting and design guidelines to encourage improved attractiveness of industrial sites and landscaping (2,p67). Prepare a Structure Plan of the Allansford Industrial area in conjunction with the Shire of Moyne to effectively plan for its future development (2,p67). Investigate a future business park including a Business 3 zone as an appropriate buffer between the saleyards and residential land (CS). Prepare an urban design framework for Dennington that recognises the potential for the development of local retailing (possibly a supermarket) to support residential growth in the area and reinforce its status as a self contained township (2,sp69).
Undertake a regional land capability study for rural land (C/S). Develop a long term vision to connect the City Centre with the Woollen Mill and Harbour Precinct (CS). Progressively upgrade the connections between the City Centre, the Woollen Mills and the Harbour Precinct (CS).
Other actions
Liaise with Midfield Meats to encourage preparation of a Master Plan to rationalise operational land requirements for accommodating stock (2,p67). Apply EPA guidelines that aim to minimise environmental impacts of industrial activities (2,sp67 - CS). Work with industry to expand freight hub and associated storage facilities (15,p33). Adopt a flexible and facilitative approach to locating appropriate ‘green field’ sites for large scale industrial operations such as food processing companies (1, From existing Clause 21.10 - Objective). Adopt a facilitative approach to resolve amenity issues on the interface of residential and industrial zones (1, From existing Clause 22.03-4). Identify and facilitate the development of appropriate sites for retail use such as cinemas, supermarkets or discount department stores throughout Warrnambool (2,p69). Monitor and review the Retail Strategy Update so that changes in demography, retailing, competition and other factors can be suitably addressed (3,p21). Improve foreshore assets (6, p57). Work with V/Line and tourism operators to improve connections from the railway station to accommodation venues (CS).
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21.08 INFRASTRUCTURE
21.08-1 Overview
Water, Sewerage & Drainage While stormwater quality has generally improved in recent times, urban development has also impacted on river health through the introduction of exotic plant species, urban runoff, use of septic tank systems and industrial waste. There is a need to look at suitable alternatives to traditional infrastructure servicing such as stormwater harvesting. This would reduce the impact of urban runoff into the water catchments. The use of WSUD and utilising open spaces to act as floodways are also strategies that can minimise pollution of stormwater runoff into the catchments. Reserves along creeks act as important buffers to environmental sensitivities such as Aboriginal archaeological values which can be impacted by ground disturbance (2,p27). Deficiencies in the Council drainage system have been identified in the Warrnambool Drainage Strategy (2003) based on existing Council design guidelines and proposed objectives for the performance of the drainage system. Areas of the Council drainage system have also been identified that may be subject to overland flow, and guidelines on development control in these areas have also been identified including on-site water retention or payment of headworks charges (7, p1 –CS. Drainage impediments in Allansford and in the Harrington Road and Aberline Road areas will have an impact on development and may require the provision of retarding basins (CS). Incompatible land uses The historical development of Warrnambool has resulted in some industrial and residential areas being located adjacent to each other (CS). Greater care is now taken to ensure adequate buffers are present between dwellings and industrial activity. Such land use conflicts have occurred in the Merrivale area and options for visual and noise attenuation will be given high priority. The Warrnambool City Saleyards, the Wannon Water treatment plant, the Nestle factory and the Warrnambool airport (CS) are of great significance to the economy of the area and this asset needs to be protected from residential encroachment. Similarly, the Premier Speedway and Lake Gillear sporting area are important regional assets and also need to be protected from residential encroachment (1, From existing Clauses 21.08 and 22.04-4 and 22.04-5). Community Services Warrnambool has an extensive range of education, community and health services which enhance the lifestyle of local residents. Private and public education facilities are available from pre-school to secondary college level. The South West Institute of TAFE is located within the town centre while the Warrnambool campus of Deakin University and associated student accommodation is located on the eastern outskirts of the City. A comprehensive range of specialist medical and extended care services are present in Warrnambool, primarily at the Warrnambool and District Base Hospital, Lyndoch and St. John of God Hospital. The Warrnambool and District Base Hospital and South West Institute of TAFE are located in the southern area of the CAD. Both facilities have good access to public transport and other City services, and contribute to the vitality of the City (1, From existing Clause 21.11).
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21.08-2 Infrastructure Objectives
General
To ensure that infrastructure effectively meets community needs (1, 21.11-s- CS). Water, sewerage and drainage
To provide additional water storage capacity in the catchment area (1, 21.11-s- CS). To preserve and rehabilitate existing natural features of the stormwater drainage system, such as natural channels, wetlands and riparian vegetation (7,p2-CS). Incompatible land uses
To limit sensitive uses in proximity to the Warrnambool Saleyards, Waste Water Treatment Plant, Warrnambool Airport, Premier Speedway and the Lake Gillear sporting area (1,From existing Clauses 22.03-4; 22.04-4 and 22.04-5-CS). Community Services
To facilitate the provision of community services and facilities in new growth areas (1,From existing Clause 21.11). To develop Warrnambool as the key specialist service centre of South West Victoria in the areas of health, education, legal, financial services and regional government services (15,p33).
21.08-3 Infrastructure Strategies
General
Ensure that future urban development is planned on the basis of providing full infrastructure development and a range of social and community facilities sufficient to support the future population of the municipality (MSS – CS). Improve the major road entrances to Warrnambool to provide significant boulevard entrances to the City (1, existing Clause 22.11). Incorporate buffer zones and reserves into new developments to enhance and preserve natural and heritage assets (2, p 27). Develop an open space network that links areas of environmental significance and connects local destinations (2,sp50). Require that residential subdivisions incorporate a road hierarchy that includes capability for public transport and access to nearby commercial centres (2,sp50). Maintain the Princes Highway as the major boulevard entrance to Warrnambool and develop and maintain the Hopkins Highway as a secondary major boulevard entrance to Warrnambool (1, 21.11-s-CS). Develop Caramut Road as a secondary boulevard entrance to Warrnambool (CS). Support and enhance public transport to and within Warrnambool (1, 21.11-s-CS). Provide a network of open space and recreation facilities, which reflects the needs of local communities within the City (1, 21.11-s-CS). Establish over the medium to longer term, shared pathways for pedestrian and bicycle users between major activity areas including along the foreshore, between Proudfoots Boathouse and the University, and between the City and Allansford along the Princes Highway reservation (1, 21.11-s-CS). MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 44 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE] LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
Water, sewerage and drainage
Ensure that stormwater drainage constraints are considered in an assessment of any redevelopment (CS). Prevent urban run-off which leads to erosion, salinisation or degradation of waterways (CS). Implement the Warrnambool Drainage Strategy, (2003) (7). Implement the Warrnambool Stormwater Management Plan, (2002) (4). Encourage the integration of drainage systems into the urban landscape to maximise the visual and recreational amenity of developments (7,p2). Incorporate principles of Water Sensitive Urban Design in new development in the Mortlake Road area in response to the drainage issues affecting the area (2, p37, 38). Ensure that a high standard of effluent disposal is achieved and that all waste water is retained on site where reticulated sewer is not available (1, From existing Clause 21.09 - Overview). Ensure that piped drains have sufficient capacity to ensure that flooding is not a regular nuisance in minor storms (7,p2). Ensure that in new subdivisions no overland flow is directed onto the building envelope of any new allotment from roadways or upstream properties during major flood events (7,p3). Where reticulated sewer is not available, ensure that a high standard of effluent disposal is achieved and that all waste water is retained within the site (1, 21.11-s- CS). Incompatible land uses
Provide buffers between new industrial and residential areas in the form of public open space, roads, substantially landscaped areas of private land or similar means intended to limit visual and acoustic impacts (1,From existing Clause 22.03-4). Discourage residential subdivision and development within 500 metres of the boundaries of the Warrnambool Saleyards (1, From existing Clause 22.03-5). Discourage residential subdivision and development within 200 metres of the sewerage treatment plant (1, From existing Clause 22.04-6). Protect the Premier Speedway and the Lake Gillear sporting area from encroachment by residential development (1, From existing Clause 22.04-4 and 22.11). Community Services
Provide facilities and services which satisfy the range of community needs for children, youth and the aged (1, From existing Clause 21.11 - Objective). Provide a network of open space and recreation facilities, which reflects the needs of communities within the City (1, From existing Clause 21.11 - Objective). Maintain an efficient and comprehensive range of community facilities (1, 21.11-s- CS). Expand the hospital and TAFE services to maintain Warrnambool’s role as a major service provider in South West Victoria (1, 21.11-s-CS). Encourage development in locations where a range of infrastructure and appropriate community services are available (1, 21.11-s-CS). Support the Warrnambool and District Base Hospital and the St. John of God Hospital as essential assets for the community, balanced with maintaining an
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appropriate residential environment for the surrounding areas, by implementing a master plan for the area (1, 21.11-s-CS). Improve the linkages of the Deakin campus with the City and maximise opportunities for university related business opportunities (1, 21.11-s-CS).
21.08-4 Infrastructure Implementation
These strategies will be implemented by: -
Using zones, overlays, policy and exercise of discretion
Applying appropriate zones and overlays. Applying the Building Construction in Low Density Residential and Rural Living Zones local policy at Clause 22.01-1. Applying the Urban Floodway local policy at Clause 22.02-1. Applying the Potential for Groundwater Recharge local policy at Clause 22.02-2. Applying the Susceptibility for Mass Movement local policy at Clause 22.02-3 Applying the Steep Land local policy at Clause 22.02-4 Applying the Saleyards local policy at Clause 22.04-1. Applying the Premier Speedway local policy at Clause 22.04-2. Applying the Lake Gillear Sporting Area local policy at Clause 22.04-3.
Undertaking further strategic work
Amend Council’s Design Guidelines for Subdivisional Developments, Urban/Rural Road and Drainage Construction Projects, and Traffic Management (2003) to include guidance on sustainability, WSUD and landscaping (2,p55, 58, 60, 63). Investigate the need for a Public Acquisition Overlay along the Hopkins and Merri Rivers (1, Clause 21.09). Undertake a Link Road feasibility study for the North East Corridor to determine appropriate route location, having regard to the future land use directions (2,p55). Investigate the infrastructure costs associated with higher density development in the City Centre (CS). Implement a monitoring system to ensure that development does not impact on the beneficial uses of the existing groundwater resource (2s,p57). In association with Wannon Water, the EPA and the Glenelg Hopkins Catchment Management Authority, undertake further work on the impact of septic tank systems, the capacity of the land and waterways to accommodate the impacts of further urban development and possible alternative forms of effluent disposal (1,Generally from existing Clause 21.11- CS). Prepare a local policy that sets out guidelines for the achievement of boulevard entrances to Warrnambool (1, 21.11-s-CS).
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Other actions
Establish shared pathways for pedestrian and bicycle users between major activity areas including along the foreshore, between Proudfoots Boathouse and the University, and between the City and Allansford along the Princes Highway reservation (1, From existing Clause 21.11 - Objective). Examine infrastructure requirements such as roads (i.e. Flaxman Street and Otway Road) to determine appropriate residential capacity within the Hopkins River/Coastal area (2,sp57 - CS). Upgrade the Warrnambool railway station public transport interchange (2,p65). Assess water and sewer infrastructure capability associated with future intensification of urban activity (2,p65). Undertake appropriate infrastructure upgrading (such as sewerage and water supply services) in the Mortlake Road area in order to accommodate additional growth (2, p37,38). Support the implementation of the Glenelg Hopkins CMA Rural Drainage Strategy (16, p128). Achieve the re-alignment of the Great Ocean Road directly into Warrnambool (15,p33). Develop a tourist drive from the Princes Highway at Allansford to Warrnambool via Hopkins Point Road (1, Clause 21.10). Support the implementation of the hospital masterplan (1, Clauses 21.11 and 22.04-2). Support and encourage the maintenance of the rail connection, and the bus system for Warrnambool (1, 21.11-s-CS). Ensure an adequate water supply is able to be obtained locally for consumption and fire fighting purposes, where reticulated water is unavailable (1, 21.11-s-CS).
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21.09 MONITORING AND REVIEW
(From existing Clause 21.12) The Council proposes a system of monitoring and review of the following components of the Scheme:
Continual monitoring of decisions of Panels and the Victorian Civil and Administrative Tribunal as a basis for any required changes. Monitoring the success of the local policies in achieving the aims intended. Reviewing the applications that relate to the Urban Floodway controls. An annual review, in conjunction with Council’s budgetary process, of strategic planning issues. (From Council Plan 2004-2008, p25)
4 Year Strategies Strategic Indicator CityPlanning Provide an efficient and effective planning Community satisfaction with ‘Town Planning approvals system Policy and Approvals’, as measured by the annual Community Satisfaction Survey, to be in the top 50% for both the ‘Group 3’ councils and Victorian local governments by 2008. Complete all heritage studies equivalent to Studies completed and controls implemented State ‘best practice’ standards and incorporate protection within the planning scheme. Develop and implement updated policies for Policies developed and implemented. development contributions. Establish design guidelines for areas of special Special interest areas defined and design interest. guidelines established. Develop and implement education program(s) Programs established and implementation for developers, builders, architects, engineers commenced. and planners on awareness of compliance with Australian Standards and ‘Good Design’. Planning and implementation of integrated City Implementation commenced in accordance with Centre parking strategies. adopted parking strategies. Environment Review, update and establish management Plans established and approved/funded works plans and, where relevant, commence completed. implementation of works within public lands including:- Community satisfaction with ‘Appearances of Public Areas’, as measured by the annual • Middle and Merri Islands (CS) Community Satisfaction Survey, to be in the top 50% of the ‘Group 3’ councils. • Russells Creek • Stormwater • Botanic Gardens • Highway entrances • Recreation reserves • Trees in streets and reserves • Plant & pest controls • Warrnambool South wetlands • Lake Pertobe
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4 Year Strategies Strategic Indicator • Albert Park • Miura Friendship Garden Industry Maintain and expand Warrnambool as premier Facilitate agreed strategic direction for the location for education. development of the education sector. Ongoing support for key food processing Ongoing support for the Dairy Industry industries. Roundtable. Expansion of the meat processing industry Warrnambool to be strengthened as the retail Implementation of Warrnambool Retail ‘capital’ of South West Victoria. Strategy. Support for CBD Warrnambool Inc. Support for the expansion of business. Development of suite of effective business development programs Infrastructure Investigate and advocate for the Great Ocean Strong advocacy and/or assistance plans Road extension, upgrading of the Princes established and implemented. Highway from Geelong to Warrnambool, appropriate windfarm regulatory environment, upgrading of communications infrastructure, upgrading of rail services, upgrading of South West HealthCare and establishment of an archive centre. Provide and facilitate the establishment of a 10 Allansford land purchased and development year supply of industrial land including plan prepared. opportunities for larger format sites in Allansford and light industrial land in Additional industrial land zoning and Warrnambool. development within Warrnambool. Work with key stakeholders (industry, Biennial surveys completed and a database of education providers, employment agencies etc) current and future skill shortages developed and to facilitate the development of the right skill distributed. sets. Subject to resources, effective ‘employment opportunities’ support to Council’s Migrant Resettlement Project. A multicultural policy for the City is developed and implemented.
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21.10 REFERENCE DOCUMENTS
Housing
Warrnambool Land Use Strategy, Research Planning Design Group, Parsons Brinckerhoff Australia Pty Ltd & SGS Economics and Planning Pty Ltd, Sept 2004 Logans Beach Urban Design Guidelines, Connell Wagner Allansford Urban Design Framework, Connell Wagner, July 2003
Environment
Guidelines for Western Coast Regional Coastal Board, May 2001. Coastal and Marine Planning Program, South West Victorian Coastal Planning Scheme Review, Connell Wagner, July 2001 South West Sustainability Blueprint - Regional Innovation Pty Ltd Glenelg Hopkins Regional Catchment Strategy 2003 -2007, Glenelg Hopkins CMA Glenelg Hopkins Regional Catchment Strategy 2003 -2007 Implementation Guide. Glenelg Hopkins Catchment Management Authority Native Vegetation Plan Glenelg Hopkins Catchment Management Authority Rural Drainage Strategy Great Ocean Road Strategy, DSE, 2004 Great Ocean Road Region Landscape Assessment Study (Regional Toolkit, Warrnambool Toolkit and Precinct 3.2 Toolkit), Planisphere, 2003 Sites of Biodiversity Significance in the Warrnambool Shire 2002 (CS) Warrnambool Environmental Management Plan (CS) North Warrnambool Flood Study (2004) (CS)
Economic Development
Warrnambool Retail Strategy Update, Essential Economics Pty Ltd, June 2003 Warrnambool Retail Strategy, Essential Economics Pty Ltd & Planning by Design, 2001 Industrial Land Strategy, Sinclair Knight Merz, September 2001 Warrnambool City Centre Business Plan, Planning by Design, 2001/2002 Warrnambool City Centre Urban Design Framework David Locke Associates June 2001 Warrnambool Economic Development Strategy, Sinclair Knight Merz, August 2001 Dairy Business Park Study, SKM, October 2001 Eastern Activity Precinct Structure Plan, Hansen Partnership, August 2004
Infrastructure
Warrnambool Drainage Strategy, Hyder Consulting, September 2003 Warrnambool Stormwater Management Plan, Earth Tech, February 2002 Design Guidelines for Subdivisional Developments, Urban/Rural Road and Drainage Construction Projects, and Traffic Management, Warrnambool City Council, May 2003
MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 50 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE] LOCAL PROVISION WARRNAMBOOL PLANNING SCHEME
Legend for sources of material The ‘number’ refers to the numbered source documents listed below. ‘p’ refers to page number. ‘s’ indicates that the source material has been summarised or edited. ‘CS’ indicates that the material has been identified by Council/Staff Source Documents (included as Reference Documents at Clause 21.10) 1 Existing Warrnambool MSS 2 Warrnambool Land Use Strategy, 2004 3 Warrnambool Retail Strategy Update, 2003 4 Warrnambool Stormwater Management Plan, February 2002 5 Warrnambool City Centre Urban Design Framework, June 2001 6 Warrnambool Economic Development Strategy, 2001 7 Warrnambool Drainage Strategy, 2003 8 Logans Beach Urban Design Guidelines, Connell Wagner 9 Allansford Urban Design Framework, Connell Wagner, July 2003 10 Great Ocean Road Landscape Assessment Report, (10R) Regional Toolkit (10W) Warrnambool Toolkit (10P) Precinct 3.2 Toolkit 11 Coastal and Marine Planning Program, South West Victorian Planning Scheme Review, July 2001, Connell Wagner. 12 Warrnambool Eastern Activity Precinct Structure Plan, Hansen and Hyder, August 2004 13 Glenelg Hopkins Regional Catchment Strategy 2004-2007, Glenelg Hopkins CMA. 14 South West Sustainability Blueprint, Prepared for the South West Sustainability Partnership by Regional Innovation Pty Ltd 15 Council Plan 2004-2008 16 Glenelg Hopkins Regional Catchment Strategy 2003 -2007, Glenelg Hopkins Regional Catchment Authority 17 Glenelg Hopkins Regional Catchment Strategy 2003 -2007 Implementation Guide, Glenelg Hopkins Regional Catchment Authority Other relevant Documents * Industrial Land Strategy, SKM, September 2001 – no direct inclusions in the MSS, other than as a reference document. * Dairy Business Park Study, SKM, October 2001 – no direct inclusions in the MSS, other than as a reference document. * Design Guidelines for Subdivisional Developments, Urban/Rural Road and Drainage Construction Projects, and Traffic Management, Warrnambool City Council, May 2003 – no direct inclusions in the MSS, other than as a reference document. * Warrnambool City Centre Business Plan 2001/2002, Planning by Design – no direct inclusions in the MSS, other than as a reference document.
* City of Warrnambool Road Safety Profile, Warrnambool City Council, May 2002 – included as a reference document
MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21 PAGE 51 OF…… Modified Draft – June 2005 – Post Consultation – With Attributions [DATE TO BE INSERTED BY DSE]