Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
AMENDMENT C99:
PERMANENT SITE SPECIFIC HERITAGE CONTROLS FOR
THE FORMER NUGGET FACTORY, WILLIAMSTOWN
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown EXECUTIVE SUMMARY
The Former Nugget Factory (Nugget Factory) is located at 16 to 20 Kanowna Street; Williamstown; land at lot 3 on Title Plan 852861D (the Site). The Site is currently zoned Mixed Use Zone and Heritage Overlay – Schedule 8: Government Survey Heritage Precinct (HO8).
The heritage significance of the Nugget Factory has been an ongoing matter for consideration. Since Amendment C75 (which proposed the rezoning of the Port Phillip Woollen Mills Site), three reports have been prepared which consider the heritage significance of the Nugget Factory. These are:
a. Appraisal Report: Former Williamstown Steam Laundry, Kanowna Street, Williamstown prepared by Lovell Chen, December 2010; b. Heritage Report: Former Nugget Factory at 16 to 20 Kanowna Street, Williamstown prepared by Lesley Alves and Associates, August 2012; and c. Nugget Factory Kanowna Street Williamstown Heritage Assessment Report prepared by Biosis, 21st October 2013 (Biosis report).
While the Site and the Nugget Factory are identified by the Hobson Bay Industrial Land Management Strategy, 2008 (ILMS) as part of the Strategic Redevelopment Area (SRA) portion of Precinct 20; at the time of drafting the ILMS, the heritage significance of the Nugget Factory was not known.
The existing HO8 identifies the Nugget Factory as non contributory, whereas recent heritage reports have found that the Nugget Factory has heritage significance. The most recent Biosis report suggesting a site specific heritage overlay to ensure that the heritage controls affecting the Nugget Factory appropriately reflect the importance of the Nugget Factory which they currently do not do.
Given the above, Amendment C99 proposes to:
a. Amend the schedule to Clause 43.01: Heritage Overlay to include Heritage Overlay – Schedule 317: the Former Nugget Factory (HO317); and b. Amends Planning Scheme Map 19HO to apply HO317 to the Site. c. Amend Clauses 21.06, 21.10 and 22.01 to remove reference to the Hobsons Bay Heritage Study Amended 2010 and replace it with Hobsons Bay Heritage Study Amended 2014.
Consequently, it is recommended that the Council:
a. Supports the preparation and exhibition of Amendment C99 to the Hobsons Bay Planning Scheme; and
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown b. Request authorisation from the Minister for Planning under Section 8A of the Planning and Environment Act 1987 (VIC) to prepare and exhibit Amendment C99 to the Hobsons Bay Planning Scheme to introduce a site specific heritage overlay to the Former Nugget Factory being land at 16 to 20 Kanowna Street, Williamstown.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
CONTENTS
SECTION PAGE NUMBER
Part One Purpose 5 Overview 5
Part Two The Site 6 The Immediate Surrounds 7 The Broader Surrounds 12 Background 13 Heritage Significance 16 The Amendment 19
Part Three Strategic Assessment of the Amendment 21 Relevant Policies 25 Other key matters that require consideration 27
Part Four Summary 30 Conclusion 30
Maps One: Boundaries of the Site 6 Two: Boundaries of Precinct 20 (orange and grey) 7 Three: Boundaries of 16 to 20 Kanowna Street, 7 Williamstown Four: Boundaries of the Former Port Phillip Woollen 8 Mills Site Five: Site Surrounds 9 Six: Surrounding Zoning 10 Seven: The Environmental Audit Overlay 10 Eight: Design and Development Overlay Controls 11 Nine: Heritage Overlay Controls 12 Ten: Major Hazard Facility Outer Advisory Area 28
Acronyms 31 References 33
Appendices One: Heritage Reports 34 Two: Amendment Documents including Citation 35
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown PART ONE
PURPOSE
1. The purpose of this report is to consider whether there is merit to Amendment C99 (the Amendment) to the Hobsons Bay Planning Scheme (HBPS) and to justify the Council seeking authorisation to prepare and exhibit the Amendment.
OVERVIEW
2. This report is divided into the following sections:
a. Part One provides a purpose and a brief overview of this report. b. Part Two provides details of the Site, its immediate surroundings, background to the Amendment and details of Amendment C99. c. Part Three assesses the Amendment against the Strategic Assessment Guidelines, relevant policies and other matters that require consideration. d. Part Four provides a summary and conclusion.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown PART TWO
THE SITE
3. The Amendment affects the Former Nugget Factory (Nugget Factory) located at 16 to 20 Kanowna Street, Williamstown which is lot 3 on Title Plan 852861D (the Site). Map One illustrates the boundaries of the Site.
Map One: Boundaries of the Site.
4. As noted above, the Nugget Factory currently occupies the Site.
5. The Site is currently zoned Mixed Use Zone (MUZ) and is affected by:
a. Heritage Overlay – Schedule 8: Former Government Heritage Survey (HO8); b. Design and Development Overlay – Schedule 11: Precinct 20: Former Port Phillip Woollen Mills (DDO11); and c. An Environmental Audit Overlay (EAO).
6. The Site is also part of Precinct 20: Land at Ann Street, Nelson Place, Kanowna Street, Aitken Street, south of Nelson Place and Battery Road, Williamstown (Precinct 20) as defined by the Hobsons Bay Industrial Land Management Strategy, 2008 (ILMS). This is discussed further at the ‘Background’ and ‘Relevant Policies’ sections of this report. Map Two of page five illustrates the boundaries of Precinct 20.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown Map Two: Boundaries of Precinct 20 (area in orange and grey).
THE IMMEDIATE SURROUNDS
7. The Site is situated within a larger parcel of land that has the address of 16 to 20 Kanowna Street, Williamstown which, in addition to the Nugget Factory, is also occupied by a number of warehouses. Map Three illustrates the boundaries of this larger site.
Map Three: Boundaries of 16 to 20 Kanowna Street, Williamstown.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
8. This larger parcel of land is part of the Former Port Phillip Woollen Mills (FPPWM) Site which is part of Precinct 20 as defined by the ILMS. Map Four illustrates the boundaries of the FPPWM Site.
Map Four: Boundaries of the Former Port Phillip Woollen Mills Site.
9. Land to the north of the Site is currently being cleared to facilitate the redevelopment of the FPPWM Site. Further north of this is BAE systems, a ship building site. To the east of the Site and across Kanowna Street is the BAE car park and further south of that, the Point Gellibrand Coastal Park. To the south of the Site are vacant allotments that also form part of the FPPWM and residential dwellings. To the west of the Site is also land that forms part of the FPPWM Site and residential dwellings. Map Five on page eight illustrates the Site surrounds.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown Map Five: Site Surrounds.
10. Generally, land immediately surrounding the Site is zoned Residential 1 Zone (R1Z), Residential 2 Zone (R2Z) or MUZ. The exceptions to this are the BAE systems site which is zoned Special Use Zone – Schedule 5: Marine Engineering Area (SUZ5) and Point Gellibrand Coastal Park which is zoned Public Park and Recreation Zone (PPRZ). Map Six on page nine illustrates the zoning of surrounding land.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown Map Six: Surrounding Zoning.
11. Land that surrounds the Site is affected by a number of overlays including the EAO, DDO11, Design and Development Overlay – Schedule 4: and 8: Foreshore Height Controls (DDO4 and DDO8) and various heritage overlays. Maps Seven to Nine below and on the following pages illustrate the overlays that affect the Site and Site surrounds.
Map Seven: The Environmental Audit Overlay.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
Map Eight: Design and Development Overlay Controls.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown Map Nine: Heritage Overlay Controls.
THE BROADER SURROUNDS
12. The broader surrounding area includes existing and well established residential development that is affected by heritage overlay controls. The site is in proximity to the following:
a. Williamstown train station is 375 metres from the Site (as the bird flies); b. Business 1 Zone (B1Z) land at Nelson place is 470 metres from the Site (as the bird flies); c. Robertson Reserve is 695 metres from the Site (as the bird flies); and d. Mobil’s Point Gellibrand Tanks are 335 metres from the Site (as the bird flies).
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown BACKGROUND
13. This section provides a brief overview of the background to the Nugget Factory and the Site.
The Hobsons Bay Industrial Land Management Strategy, 2008
14. In response to the release of Melbourne 2030 (M2030), the Council commissioned a review of the 1997 Hobsons Bay Industrial Land Management Strategy and prepared Amendment C33 to the HBPS. The ILMS provides clear strategic direction in relation to the future use and development of industrial land in Hobsons Bay for the next 15 years and sets the foundation for continued development beyond this point.
15. The ILMS divides identified precincts into three categories, core industrial, secondary industrial and Strategic Redevelopment Areas (SRAs). The ILMS identified nine SRAs, 10 core industrial areas and eight secondary industrial areas.
16. The three categories are explained below:
a. Core Industrial Areas
o Designates major concentrations of industry, which are relatively unconstrained by residential or other sensitive uses. o These areas will be protected and provide opportunities for new growth, including the expansion of existing industries. o Non-industrial protrusions into these areas are not supported and rezoning of land to non-industrial zones will not be permitted.
b. Secondary Industrial Areas
o Designates smaller concentrations of industry, which will continue to be of strategic importance to Hobsons Bay in terms of local economic development and employment. o These areas cater for a wide range of small to medium businesses, which supply both industrial and domestic markets. o Non-industrial protrusions into these areas will not be supported.
c. Strategic Redevelopment Areas (SRA’s)
o Designates areas that may evolve from a previous industrial use to provide a wider mix of employment opportunities, including a mix of industry, commercial and office accommodation. o Designates areas that are constrained by surrounding land use patterns or access arrangements and where the opportunity exists for uses to change over time to a residential use.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
o Designates areas that are not currently industrial, but because of the existing land use conditions are best suited to an industrial zone. o The opportunity may remain for employment generating uses to continue or to re-establish, provided they are compatible with adjacent uses. o Outline Development Plans will be prepared for each area to properly plan the detail of any redevelopment.’1
17. Amendment C33 did not rezone any of the SRAs, rather it established the strategic vision subject to justification for any future rezoning which would be subject to a separate Planning Scheme Amendment (PSA).
18. The Nugget Factory and the Site are located in Precinct 20 as defined by the ILMS and illustrated in Map Two on page six.
Amendment C75: The Former Port Phillip Woollen Mills
19. Stemming on from the ILMS, Amendment C75 to the HBPS proposed to rezone the FPPWM Site (as show in Map Four on page seven) from Industrial 1 Zone (IN1Z) to R1Z and:
a. Remove the existing DDO4 and DDO8; b. Introduce a Development Plan Overlay – Schedule 1: The Former Industrial Area, Nelson Place Williamstown, to control the redevelopment of the FPPWM Site; and c. Apply an EAO to address contamination.
20. The Council resolved not to support Amendment C75 at its Ordinary Council meeting of the 1st December 2009. It is acknowledged that the Bryce Rayworth report: Former Port Phillip Woollen Mills Advisory Committee Nelson Place Village Site, Williamstown, Assessment of Heritage Issues Statement of Evidence, January 2011 (Bryce Rayworth Statement of Evidence) did not identify the Nugget Factory as being significant to the local heritage area.
The Former Port Phillip Woollen Mills Advisory Committee
21. On the 1st of April 2010, the Minister for Planning (Minister) approved Amendment C75 pursuant to section 20(4) of the Planning and Environment Act 1987 (VIC) (the Act) and appointed the FPPWM Advisory Committee on the 27th of May 2010.
22. The approved Amendment C75 rezoned the FPPWM Site to R1Z and applied an EAO. The existing overlays – being the DDO4, DDO8 and various Heritage Overlays remained unchanged.
1 Hobsons Bay City Council (HBCC), Hobsons Bay Industrial Land Management Strategy, 2008, June 2008, Industrial Land Management Strategy and Guidelines, http://www.hobsonsbay.vic.gov.au/Planning_and_Building/Strategic_Planning_Services/Strategic_planning_policies/Industrial_Land _Management_Strategy_and_Guidelines, page 7.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown 23. The FPPWM Advisory Committee report was released by the Minister on the 28th November 2011.
24. While not considering a definitive proposal, the FPPWM Advisory Committee recommended the following in relation to heritage matters:
a. ‘The existing suite of heritage controls be retained. b. Clause 22.01 be included as a specific decision guideline in the planning controls for the land’2
Amendment C86 to the Hobsons Bay Planning Scheme
25. As a result of the FPPWM Advisory Committee, the Minister approved Amendment C86 to the HBPS. Amendment C86 made the following changes to the HBPS:
a. Rezoned part Precinct 20 as identified by the ILMS to MUZ; b. Removed DDO4 and DDO8 from the FPPWM Site; c. Applied DDO11; and d. Applied an EAO to all of Precinct 20 (not just the FPPWM Site) with the exception of 23 Ann Street, Williamstown.
26. These are the current controls that apply to the FPPWM Site and therefore the Nugget Factory and the Site.
Subsequent Planning Permit Applications
27. As a result of the above changes to the HBPS, planning permit applications have been lodged with the Council for the redevelopment of the FPPWM Site and including the Nugget Factory.
28. Of relevance are the following permit applications:
1. PA1225139 which proposed to ‘demolish existing building, remove surface treatments and construct a perimeter fence,’ at 3 to 39 Nelson Place, Williamstown.
2. PA1226025 which proposes ‘demolition of the existing buildings and construction of a 10 storey building comprising of 128 dwellings with basement car parking, construction of 41 three storey dwellings, public realm works and a reduction in the statutory car parking rate (the Site is generally bounded by Kanowna Street, Aitken Street, Cecil Street and Windsor Terrace),’ at 3 to 39 Nelson Place, 2 to 10 Nelson Place and 16 to 20 Kanwona Street, Williamstown. The number of dwellings for this application has been amended
2 John Keaney, Bob Evans, Ann Keddie, Former Port Phillip Woollen Mills Advisory Committee Report of the Advisory Committee Pursuant to Section 151 of the Act,’ 10 May 2011, Former Port Phillip Woollen Mills Advisory Committee, http://www.hobsonsbay.vic.gov.au/Planning_and_building/Strategic_planning_services/Advisory_Committees_and_Panels/Advisory _Committees/Former_Port_Phillip_Woollen_Mill_Advisory_Committee, page 70..
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown from 137 to 128 from the original application and the height changed from 11 storeys to 10 storeys.
29. Both of these applications were refused by the Council and are due to be considered by the Victorian Civil and Administrative Tribunal (VCAT) in February 2014.
Amendment C94 to the Hobsons Bay Planning Scheme
30. The heritage significance of the Nugget Factory has been an ongoing matter for consideration. Since Amendment C75 and in addition to the Bryce Rayworth Statement of Evidence, three reports have been prepared which consider the heritage significance of the Nugget Factory. These are:
a. Appraisal Report: Former Williamstown Steam Laundry, Kanowna Street, Williamstown prepared by Lovell Chen, December 2010 (Lovell Chen Appraisal);
b. Heritage Report: Former Nugget Factory at 16 to 20 Kanowna Street, Williamstown prepared by Lesley Alves and Associates, August 2012 (Alves Report); and
c. Nugget Factory Kanowna Street Williamstown Heritage Assessment Report prepared by Biosis, 21st October 2013 (Biosis Report).
31. The Lovell Chen Appraisal, the Alves Report and Biosis Report are at appendix one to this document.
32. The findings of these reports are discussed in greater detail under ‘heritage significance.’ Of relevance to this section is that as a result of the findings of some of these heritage reports, particularly the Alves Report, the Council sought interim site specific heritage controls for the Nugget Factory from the Minister. This request was made on the 22nd November 2012 as part of Amendment C94 to the HBPS.
33. Amendment C94 was refused by the then Department of Planning and Community Development (DPCD) (now Department of Planning, Transport and Local Infrastructure – DTPLI) on the 27th February 2013. DPCD advised that there is a precinct heritage overlay (HO8) that already applies to the Site which triggers the need for a planning permit for any demolition works; therefore a further interim control is not warranted. DPCD suggested that if the Council still wishes to proceed with changing the heritage status of the Nugget Factory, then a PSA application for permanent controls be applied for through the usual processes; including full exhibition and potentially consideration by an independent planning panel. This application is the result of this advice.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown HERITAGE SIGNIFICANCE
34. As noted above, the heritage significance of the Nugget Factory has been an ongoing matter for consideration. Since Amendment C75, three reports have been prepared which consider the heritage significance of the Nugget Factory. The Lovell Chen Appraisal, Alves Report and the Biosis Report have all considered the heritage significance of the Nugget Factory.
35. Stemming on from the Biosis Report, it is assumed that the two storey building facing Kanowna Street was built for the steam laundry in 1888-9 as there was no record of a building or other use on the property until 1888 when the rate books listed a laundry, office and machinery owned by Mrs Black and in 1889 the Sands and McDougall Directory names the property as the Williamstown S. (steam) Laundry.
36. The property was put on sale on the 23rd October 1889. While there has been some dispute regarding the Former Nugget Factory’s connection to P&O, (a well known shipping company from the time) a newspaper item from 1895 states clearly that this was the ‘large Morris Street premises that for so many years was carries as a P. and O. Laundry...’ A further description of the site’s history notes:
"… The building in Morris St. was originally built for a laundry handling work from the mail boats which then used to berth at Williamstown. It was later taken by the Centrifugal Chemical Co., and after years of vacancy it was occupied by the Silex Soap Co., and later was again vacant for a number of years. Then the Nugget Co. bought the building and in Aitken St' with a view to future extension. It was pointed out by. Mr. Roberts that great care is exercised by the staff in guarding against fire, as much of the material handled is of a highly in flammable nature. It was pleasing to report that no fire of a serious nature had occurred in the history of the Williamstown works."3
37. An account in 1895 notes that half the large laundry building was leased for a soap making factory; the Silex Soap works. Later on in 1907, the property was advertised as formerly being used as the Williamstown Steam Laundry and is equipped for such a business or is adapted for any manufacturing business.
38. It appears that the property was sold as a result of this advertisement to the Nugget Polish Company, a brand name of the Lane and Fitte boot Polish Company of Kensington, England which decided to obtain larger premises in Melbourne and commence local manufacture.
The Built Form
39. The Biosis report notes that equipment resulting in 78 tonnes of machinery was imported from England and installed in the footprint of the main buildings in 1909. A separate office
3 Biosis (2013). Nugget Factory Kanowna St. Williamstown heritage assessment. Report for Hobsons Bay City Council. By Gary Vines, Biosis Pty Ltd, Melbourne, pg 10-11
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown building was constructed immediately to the south of the factory between 1919 and 1922 and a tin making plant was installed and the factory extended in the 1950’s, the facade was altered sometime between 1945 and 1960 according to the Lovell Chen Appraisal.
40. It appears that manufacturing that would have taken place on the Site would have involved preparing product from bulk materials, treating, mixing, and processing ingredients (including varieties of wax such as lanolin or beeswax, turpentine, naphtha, dyes, and gum Arabic), then packing, labelling and distributing the finished products.
41. The large buildings added in the mid-20th century to the west were probably part of the warehousing and distribution business.
42. It was probably in the 1950s that the site was substantially renovated and modernised. Nugget Polish Co. became part of the Reckitt & Colman company in 1958, leased new premises in Notting Hill in 1964, and in 1968 purchased land in Clayton to build a central depot and factory, while administration was amalgamated at West Ryde in New South Wales. Production at the Williamstown factory continued until 1974 (or 1976), when the property was vacated and sold and all manufacturing went to West Ryde.
43. The large warehouses west of the earlier buildings were subsequently used for the Apprentice Training School.
44. The basic structure and layout of the 1888-9 Williamstown Steam Laundry is still intact. There is still physical evidence of the alterations of the buildings to accommodate the 1909 and later Nugget shoe polish factory. The types of plant machinery and fittings used by various industrial activities on the site would have included:
· Boilers: Brick (and possibly stone) foundations, setting, flues and chimney base – iron pipes and small relics from demolition. · Steam Engine: Stone and brick foundations and mounting blocks, feedwater tank and pipes. · Furnaces: Brick flues and foundations. · Machinery (mixing, filling, hoists, presses, etc.): Mounting blocks, iron pipes, line shaft mounts on posts and beams, wall perforations and wall and floor impressions, and bolts, pits and drains.
Comparison
45. The Alves Report and the Biosis Report indicated that very few places associated with the servicing of ships survive in Victoria. Acknowledging that the laundry function is not exclusive to shipping, some historic association provides the link. The Port Melbourne Coal Deport is most likely the only direct comparable place to the Steam Laundry/Nugget Factory. Other more general comparable commercial laundries of the period are also very rare.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
46. From the 1860’s to 1950’s, boot and shoe manufacturing (and related suppliers of leather and materials) was one of the most important industries in Melbourne. Blackening and polish makers were a small but crucial component.
47. The Lovell Chen Appraisal, Alves Report and the Biosis Report all consider the heritage significance of this building. The Bryce Rayworth Evidence Statement submitted under amendment C75 also considered the Heritage status of the Nugget Factory. Although the Lovell Chen Appraisal and Bryce Rayworth Statement of Evidence did not recommend further heritage controls be placed on the building, further subsequent reports by Alves and Biosis identify the heritage significance of the Nugget Factory and recommend further controls be applied, due to new information becoming available which is discussed further in this report.
48. The Council appointed Lovell Chen to undertake an assessment of the Nugget Factory to determine its significance as part of the Planning Scheme Amendment process. The Lovell Chen Appraisal found that the removal of the facade of the building has largely erased the architectural reference to its nineteenth century origins. However, subsequent to the Lovell Chen Appraisal and with its consideration, the Alves report and Biosis report both indicated the Nugget Factory building had local significance as a representation of non-maritime industrial uses in the Williamstown area despite the alterations to the facade. Both reports indicate that the demolition of the building would adversely affect the significance of the heritage place.
Other Previous Assessments
49. The Western Region Industrial Heritage Study which was undertaken in 1989 identified the site as being of local heritage significance and recommended that it should be protected under the Williamstown Planning Scheme and nominated to the Register of the National Estate. The City of Williamstown Conservation Study 1993 does not list the building as having significance to the area nor does the Hobsons Bay Heritage Study 2006 (revised 2010) (Heritage Study). It appears that this building has been overlooked as part of the Conservation study and therefore, the Heritage Study and its status should therefore be rectified.
Conclusion
50. Although the Nugget Factory is affected by HO8, it is not characteristic of the types of places for which the overlay was created and therefore warrants a separate heritage overlay. There do not appear to be any serious structural deficiencies in the buildings (noting contamination as a result of former uses) and the Nugget Factory is in a relatively sound state.
51. It demonstrates its historical significance and has considerable archaeological potential. Consequently, it should be maintained and appropriately protected.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
THE AMENDMENT
52. Given the above, Amendment C99 proposes to:
a. Amend the schedule to Clause 43.01: Heritage Overlay to include Heritage Overlay – schedule 317: The Former Nugget Factory (HO317). b. Amends Planning Scheme Map 19HO to apply HO317 to the Site. c. Amend Clauses 21.06, 21.10 and 22.01 to remove reference to the Hobsons Bay Heritage Study Amended 2010 and replace it with Hobsons Bay Heritage Study Amended 2014.
53. The relevant amendment documentation including the heritage citation for HO317 are at appendix two to this document.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown PART THREE
STRATEGIC ASSESSMENT OF THE AMENDMENT
54. Ministerial Direction 11 requires the Planning Authority (PA), the Council in this instance, to evaluate and discuss how the Amendment addresses a number of strategic matters to ensure that an Amendment has been strategically justified when being considered. The strategic assessment guidelines in Ministerial Direction 11 are:
a. Why is the amendment required? b. How does the amendment implement the objectives of planning Victoria? c. How does the amendment address any environmental, social and economic effects? d. How does the amendment address any relevant bushfire risk? e. Does the amendment comply with the other Minister’s Direction application to the amendment? f. How does the amendment support or implement the State Planning Policy Framework and adopted State policy? g. How does the amendment support or implement the Local Planning Policy Framework, and specifically the Municipal Strategic Statement? h. Does the amendment make proper use of the Victorian Planning Provisions? i. How does the amendment address the views of any relevant agency? j. Does the amendment address the requirements of the Transport Integration Act 2010 (VIC)?’4
55. Ministerial Direction 11 also requires the PA to assess the impact of the new planning provision on the resources and administration costs of the responsible authority, the Council in this instance.5
56. Using the headings above, this section will assess the Amendment against the strategic assessment guidelines.
Why is the amendment required?
57. The Amendment is required to apply permanent site specific heritage controls to land at lot 3 on title plan 852861 D at 16 - 20 Kanowna Street, Williamstown to ensure that this locally significant heritage place is appropriately protected.
58. While it is acknowledged that the Nugget Factory is affected by HO8, information regarding the Nugget Factory has come to light which justifies the application of a site specific heritage overlay.
4 Minister for Planning, Direction No.11 Strategic Assessment of Amendments 18th October 2013, Ministerial Directions, http://www.dpcd.vic.gov.au/planning/theplanningsystem/the-role-of-the-minister/ministerial-directions, page 1. 5 Ibid.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown 59. The Nugget Factory was originally occupied by a Steam Laundry Servicing the P&O Company and other ships from the 1880’s. In approximately 1909, it became the Nugget shoe polish factory, later taken over by Reckitt and Coleman. The Former Nugget Factory is a significant part of Williamstown’s and Hobsons Bay’s history and heritage. It is a rare surviving example of the noxious trade and chemical industry which was characteristic of the western suburbs but is now virtually extinct. Further, the Nugget Factory is historically significant for its association with the maritime service industries in Melbourne and shipping. It is one of the very few examples of 19th Century industrial fabric in Williamstown or the western suburbs and has archaeological significance for evidence of the former uses in terms of structural features, buried footings and foundation relics.
60. Buildings covered by a heritage overlay but not listed as contributory in the Heritage Study or individually listed within the HBPS are not identified as having high heritage significance and subsequently are not afforded the same level of protected from demolition as a contributory or individually cited building. As this building has now been identified as having a higher level of heritage significance, its status under the heritage overlay should be updated to ensure it is protected from inappropriate demolition.
How does the amendment implement the objectives of planning in Victoria?
61. The Amendment facilitates the objective ‘to conserve and enhance those buildings, areas or other places which are of scientific, architectural or historical interest or otherwise of special cultural value’ as set out in section 4(1)(d) of the Act.
How does the amendment address the environmental effects and any relevant social and economic effects?
Environmental
62. The Amendment is not anticipated to have detrimental environmental impacts.
Social
63. The Amendment is to have a positive social impact on the community as it provides further heritage protection for the Nugget Factory in the HBPS which is of local significance.
Economic
64. The Amendment is anticipated to have a positive economic impact as it provides greater clarification for the Council and owner when considering the status of the building.
Does the amendment address relevant bushfire risk?
65. The Site is not subject to any bushfire risk.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
Does the amendment comply with the requirements of any Minister’s Direction applicable to the amendment?
66. The following directions apply to this amendment.
Ministerial Direction: The Form and Content of Planning Schemes
67. The amendment is consistent with this Ministerial Direction.
Ministerial Direction 1: Potentially Contaminated Land
68. The land is affected by an Environmental Audit Overlay which is expected to address any contamination matters.
Ministerial Direction 9: Metropolitan Strategy
69. The amendment will be consistent with the yet to be finalised Plan Melbourne: Metropolitan Planning Strategy.
Ministerial Direction 11: Strategic Assessment Guidelines
70. The amendment has been assessed against Ministerial Direction 11 and is viewed to comply.
Ministerial Direction 15: The Planning Scheme Amendment Process
71. The amendment will comply with this Ministerial Direction.
How does the amendment support or implement the State Planning Policy Framework and any adopted State policy?
72. The Amendment supports and implements the State Planning Policy Framework (SPPF) through ensuring the conservation of places of heritage significance as per Clause 15.03-1 of the HBPS.
How does the amendment support or implement the Local Policy Framework, and specifically the Municipal Strategic Statement?
73. Clause 21.06-2: Heritage
a. The amendment supports clause 21.06-2: Heritage, of the Hobsons HBPS. The general objectives of this policy is to conserve heritage places and buildings. The
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown amendment seeks to apply site specific heritage controls on the Nugget Factory, which based on the reports warrants such controls.
74. Clause 22.01: Heritage Policy
a. The amendment supports clause 22.01: Heritage Policy, of the HBPS. Clause 22.01 comprises of an overall policy which applies to all heritage precincts and places in the City of Hobsons Bay.
b. Clause 22.01-1: General Heritage Policy includes a policy basis, objectives, and decision guidelines which apply to all land within a heritage overlay. In particular, the policy has an objective to conserve characteristics that contribute to the individual identity of heritage places and precincts within Hobsons Bay and ensure that their cultural significance is not diminished by: The loss of any fabric which contributes to the significance of the heritage place or precinct.
In addition to Clause 22.01-1, of relevance to Amendment C99 is Clause 22.01-2: Government Survey Heritage Precinct Policy (including HO8) which currently applies to the Nugget Factory. This precinct policy also includes an objective to retain distinctive heritage significance which is derived from: The strong associations with the maritime and railway industries that were key influences in the early historic development of Williamstown.
75. It is noted that the Amendment makes minor changes to Clause 21.06, 21.10 and 22.01: Heritage Policy to update reference to the Hobsons Bay Heritage Study Amended 2013.
Does the amendment make proper use of the Victorian Planning Provisions?
76. The Amendment makes proper use of the Victorian Planning Provisions.
How does the amendment address the views of any relevant agency?
77. The Amendment will require the views of Heritage Victoria which will be sought during exhibition.
Does the amendment address relevant requirements of the Transport Integration Act 2010?
78. The Amendment does not impact the Transport Integration Act 2010 (VIC).
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown What impact will the new planning provisions have on the resources and administrative costs of the responsible authority?
79. The Amendment is not likely to cause significant impacts on the resources of the Council.
RELEVANT POLICIES
80. The following local policies are of relevance to the Amendment:
a. The ILMS; b. The Hobsons Bay Heritage Study 2006 (amended 2010); and c. The Hobsons Bay Neighbourhood Character Policy, 2002.
81. These policies are discussed in detail below.
Hobsons Bay Industrial Land Management Strategy, 2008
82. As discussed at the ‘background’ section in part two, the Site is situated in Precinct 20 as defined by the ILMS and forms part of the FPPWM Site. At the time of writing the ILMS, the heritage significance of the Nugget Factory was not known, it is since then that this significance has come to light.
Hobsons Bay Heritage Study 2006 (revised 2010)
83. The Heritage Study identifies heritage places and precincts in Hobsons Bay and contains detailed information about the themes that have shaped the municipality over the last 165 years.
84. The Heritage Study provides the strategic basis for the application of statutory controls via the Heritage Overlay, heritage policies and guidelines to protect, conserve and manage the municipality’s heritage assets.
85. Of relevance to the Amendment is HO8 which is generally land bounded by Ferguson Street, Nelson Place, Kanowna Street, Morris Street, Esplanade, Giffard Street and Railway Place, Williamstown. This area is identified as having local historical, social and aesthetic significance to the City of Hobsons Bay. It is of local significance.
86. Historically, the area covered by HO8 demonstrates the most important and prosperous phase in the development of Williamstown from the mid nineteenth to early twentieth century’s which was directly associated with the development of the port and later influenced by the development of railways and associated industries.
87. Socially, the area affected by HO8 is important for its ability to help understand and interpret the lifestyle of this isolated and close knit community during the nineteenth century.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
88. Aesthetically, while there are examples of unrelated post war development in HO8, as a whole, it retains intact and cohesive groups of nineteenth century and early twentieth century buildings that are a key part of the special character of early Williamstown. Key elements include:
a. ‘The distinctive street layout based on a series of intersecting grids, which illustrates prevailing attitudes towards town planning in the nineteenth century. b. Unusual or rare early building styles and types such as the basalt houses and the timber duplex houses with no dividing wall that are characteristic of this part of Williamstown but less common elsewhere in the metropolitan area. c. The major nineteenth century community and civic buildings, many designed by noted Melbourne architects, both individually and in key groups – notably in Electra Street and the former Market Reserve. d. The unifying effect throughout the precinct of groups of predominantly Victorian and Edwardian era houses with common or similar characteristics of design, siting and scale that creates cohesive and homogeneous streetscapes. Many are externally intact and others, although altered, still retain their distinctive form and siting and hence contribute to the precinct. e. The basic nineteenth century or early street construction and the remnant mature exotic street planting found in some streets that combines with exotic planting in private gardens to reinforce and enhance the period expression of the precinct.’6
89. Noting that not all the elements outlined above are found in all the streets within HO8.
90. The Nugget Factory is not listed as a contributory building as per HO8. Since the formulation and amendment of the Heritage Study, new information has come to light regarding the heritage significance of the Nugget Factory as outlined in the Alves Report and the Biosis Report.
Hobsons Bay Neighbourhood Character Study, 2002
91. The Hobsons Bay Neighbourhood Character Study, 2002 (NC Study) is incorporated into the HBPS via Clause 22.07 to 22.10. Of relevance to this Site is Clause 22.10 which identifies the Site being located in Precinct 5: Williamstown. The NC Study and policy provide descriptions of neighbourhood character in each precinct and outline the objective and design responses.
6 HBCC, Hobsons Bay Heritage Study Amended 2010 – Volume 3 – Heritage Precinct and Places Citations Part 1 – Heritage Precincts – Government Survey Heritage Precinct: HO8, 2006 (amended 2010), Heritage Study, http://www.hobsonsbay.vic.gov.au/Planning_and_Building/Heritage/Heritage_Study, page 2.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown OTHER KEY MATTERS THAT REQUIRE CONSIDERATION
92. In addition to matters already discussed in this document, the following also warrant consideration:
a. The Site and Nugget Factory are identified as part of Precinct 20; and b. The HO8 already affects the Site and the Nugget Factory.
The Site and the Nugget Factory are identified as part of Precinct 20
93. As discussed in the ‘Background’ and ‘Relevant Policies’ section of this document, the Site and therefore Nugget Factory are identified as part of Precinct 20 as defined by the ILMS. The Site and Nugget Factory are located in the SRA portion of Precinct 20.
94. Further, as noted at the ‘Background’ section of this document, the purpose of an SRA is to:
a. Designates areas that may evolve from a previous industrial use to provide a wider mix of employment opportunities, including a mix of industry, commercial and office accommodation. b. Designates areas that are constrained by surrounding land use patterns or access arrangements and where the opportunity exists for uses to change over time to a residential use. c. Designates areas that are not currently industrial, but because of the existing land use conditions are best suited to an industrial zone. d. The opportunity may remain for employment generating uses to continue or to re- establish, provided they are compatible with adjacent uses. e. Outline Development Plans will be prepared for each area to properly plan the detail of any redevelopment.’7
95. While it can be argued that the Amendment contradicts the policy framework set up by the ILMS, such an argument is considered unwarranted. At the time of drafting the ILMS, detailed information regarding the heritage significance of the Nugget Factory was not available and its heritage significance was not identified. Further, given the appearance of the facade of the building, previous heritage studies have overlooked it and assumed that it was not significant. The recent heritage reports appear to be the first documents to consider and highlight the heritage significance of the Nugget Factory.
The Site’s location to a Major Hazard Facility (MHF). 96. The site is partially within the outer advisory area of the Mobil Refining Williamstown at Nelson Place, Williamstown as shown on Map Ten on page 26. The Point Gellibrand Tanks are located 335 metres away from the site.
7 HBCC, Hobsons Bay Industrial Land Management Strategy, 2008, June 2008, Industrial Land Management Strategy and Guidelines, http://www.hobsonsbay.vic.gov.au/Planning_and_Building/Strategic_Planning_Services/Strategic_planning_policies/Industrial_Land _Management_Strategy_and_Guidelines, page 7.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
97. This matter was further considered by the FPPWMAC and the Port Environs Advisory Committee (PEAC) and will also be considered at the upcoming VCAT hearing in February 2014 for the planning permit applications. The Council has developed Interim Management of Land Use Planning Around Major Hazard Facilities guidelines which outline a process for considering planning permits and planning scheme amendments in advisory areas of an MHF. The future use or development of Nugget Factory Building will be affected by this issue and may restrict the future use of the building.
Map Ten – Major Hazard Facility Outer Advisory Area
Heritage Overlay – Schedule 8: Government Survey Heritage Precinct already affects the Site
98. As noted throughout this document, the Site and the Nugget Factory are affected by HO8 but not listed as contributory. While the HO8 triggers heritage consideration, if a building is not identified as contributory, it is viewed as not warranting retention and its demolition is a foregone conclusion. While demolition is not prohibited within a heritage overlay, the demolition of a building is discouraged.
99. In this instance, the existing HO8 identifies the Nugget Factory as non contributory, whereas recent heritage reports note that the Nugget Factory has heritage significance. The most recent Biosis report suggested a site specific heritage overlay to ensure that the heritage controls affecting the Nugget Factory appropriately reflect the importance of the Nugget Factory which they currently do not do.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown 100. It is against this backdrop that the need for a site specific heritage citation is considered and warranted.
101. It is acknowledged that it can be argued that irrespective of the heritage control that applies to the Nugget Factory, HO8 or HO317, the trigger in the HBPS will be Clause 43.01: Heritage Overlay. However it is maintained that when considering decision guidelines such as:
a. ‘An applicable statement of significance, heritage study and any applicable conservation study; b. Whether the demolition, removal or external alteration will adversely affect the significance of the heritage place; and c. whether the proposed works will adversely affect the significance, character or appearance of the heritage place’8
the contents of the heritage citation that applies to a building and/ or a site is critical.
102. Given the above, it is maintained that a site specific heritage overlay in the form of HO317 should apply to the Nugget Factory and the Site.
8 State Government of Victoria, Clause 43.01: Heritage Overlay, 2013, Hobsons Bay Planning Scheme, http://planningschemes.dpcd.vic.gov.au/schemes/hobsonsbay, page 3.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown PART FOUR
SUMMARY
103. The Amendment proposes to apply a site specific heritage overlay to the Nugget Factory to ensure that it is appropriately protected.
104. The Amendment complies with the relevant Ministerial Directions, the relevant SPPF and LPPF provisions.
105. While the Site and the Nugget Factory are identified by the ILMS as part of the SRA portion of Precinct 20; at the time of drafting the ILMS, the heritage significance of the Nugget Factory was not known.
106. Further, the existing HO8 identifies the Nugget Factory as non contributory, whereas recent heritage reports note that the Nugget Factory has heritage significance. The most recent Biosis report suggesting a site specific heritage overlay to ensure that the heritage controls affecting the Nugget Factory appropriately reflect the importance of the Nugget Factory which they currently do not do.
CONCLUSION
107. It is recommended that the Council:
a. Supports the preparation and exhibition of Amendment C99 to the Hobsons Bay Planning Scheme; and b. Request authorisation from the Minister for Planning under Section 8A of the Planning and Environment Act 1987 to prepare and exhibit Amendment C99 to the Hobsons Bay Planning Scheme to introduce a site specific heritage overlay to the Former Nugget Factory being land at 16-20 Kanowna Street, Williamstown.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown ACRONYMS AND ABBREVIATIONS
ACRONYM OR ABBREVIATION DETAILS
Alves Report Heritage Report: Former Nugget Factory at 16 to 20 Kanowna Street, Williamstown prepared by Lesley Alves and Associates, August 2012 B1Z Business 1 Zone Biosis Report Nugget Factory Kanowna Street Williamstown Heritage Assessment Report prepared by Biosis, 21st October 2013 Bryce Rayworth Statement of Former Port Phillip Woollen Mills Advisory Committee Evidence Nelson Place Village Site, Williamstown, Assessment of Heritage Issues Statement of Evidence, January 2011 prepared by Bryce Rayworth DDO11 Design and Development Overlay – Schedule 11: Precinct 20: Former Port Phillip Woollen Mills DDO4 Design and Development Overlay – Schedule 4: Foreshore Height Controls DDO8 Design and Development Overlay – Schedule 8: Foreshore Height Controls DPCD Department of Planning and Community Development DTPLI Department of Transport, Planning and Local Infrastructure EAO Environmental Audit Overlay FPPWM Former Port Phillip Woollen Mills HBCC Hobsons Bay City Council HBPS Hobsons Bay Planning Scheme Heritage Study Hobsons Bay Heritage Study 2006 (revised 2010) HO317 Heritage Overlay – Schedule 317: The Former Nugget Factory. HO8 Heritage Overlay – Schedule 8: Government Survey Heritage Precinct ILMS Hobsons Bay Industrial Land Management Strategy, 2008 IN1Z Industrial 1 Zone Lovell Chen Appraisal Appraisal Report: Former Williamstown Steam Laundry, Kanowna Street, Williamstown prepared by Lovell Chen, December 2010 LPPF Local Planning Policy Framework M2030 Melbourne 2030 Minister Minister for Planning MUZ Mixed Use Zone NC Study Hobsons Bay Neighbourhood Character Study, 2002 Nugget Factory The Former Nugget Factory
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown ACRONYM OR ABBREVIATION DETAILS PA Planning Authority PPRZ Public Parks and Recreation Zone Land at Ann Street, Nelson Place, Kanowna Street, Precinct 20 Aitken Street, south of Nelson Place and Battery Road, Williamstown. PSA Planning Scheme Amendment R1Z Residential 1 Zone R2Z Residential 2 Zone SPPF State Planning Policy Framework SRAs Strategic Redevelopment Area(s) SUZ5 Special Use Zone – Schedule 5: Marine Engineering Area The Act Planning and Environment Act 1987 (VIC) The Amendment Amendment C99 The Site 16 to 20 Kanowna Street Williamstown; land at lot 3 on title plan 852861D VCAT Victorian Civil and Administrative Tribunal
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
REFERENCES
· Hobsons Bay City Council (HBCC), Hobsons Bay Heritage Study Amended 2010 – Volume 3 – Heritage Precinct and Places Citations Part 1 – Heritage Precincts – Government Survey Heritage Precinct: HO8, 2006 (amended 2010), Heritage Study, http://www.hobsonsbay.vic.gov.au/Planning_and_Building/Heritage/Heritage_Study. · HBCC, Hobsons Bay Industrial Land Management Strategy, 2008, June 2008, Industrial Land Management Strategy and Guidelines, http://www.hobsonsbay.vic.gov.au/Planning_and_Building/Strategic_Planning_Services/ Strategic_planning_policies/Industrial_Land_Management_Strategy_and_Guidelines. · John Keaney, Bob Evans, Ann Keddie, Former Port Phillip Woollen Mills Advisory Committee Report of the Advisory Committee Pursuant to Section 151 of the Act,’ 10 May 2011, Former Port Phillip Woollen Mills Advisory Committee, http://www.hobsonsbay.vic.gov.au/Planning_and_building/Strategic_planning_services/A dvisory_Committees_and_Panels/Advisory_Committees/Former_Port_Phillip_Woollen_ Mill_Advisory_Committee/ · Minister for Planning, Direction No.11 Strategic Assessment of Amendments 18th October 2013, Ministerial Directions, http://www.dpcd.vic.gov.au/planning/theplanningsystem/the-role-of-the- minister/ministerial-directions. · State Government of Victoria, Clause 43.01: Heritage Overlay, 2013, Hobsons Bay Planning Scheme, http://planningschemes.dpcd.vic.gov.au/schemes/hobsonsbay.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown APPENDIX ONE: HERITAGE REPORTS
Heritage Reports circulated under separate cover- electronically. Copies of the documents can be provided upon request.
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Amendment C99: Permanent Site Specific Heritage Controls for the Former Nugget Factory, Williamstown
APPENDIX TWO: AMENDMENT DOCUMENTS INCLUDING CITATION
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Planning and Environment Act 1987 HOBSONS BAY PLANNING SCHEME AMENDMENT C99
EXPLANATORY REPORT
Who is the planning authority? This amendment has been prepared by the Hobsons Bay City Council, who is the planning authority for this amendment. The amendment has been made at the request of Hobsons Bay City Council.
Land affected by the amendment The amendment applies to land at Lot 3 on Title Plan 852861D at 16–20 Kanowna Street, Williamstown. Map One illustrates the boundaries of the Site.
Map One: boundaries of the Site.
What the amendment does The amendment proposes to apply Heritage Overlay – Schedule 317: The Former Nugget Factory to the Former Nugget Factory at land known as 16–20 Kanowna Street, Williamstown and remove Heritage Overlay – Schedule 8 from the land.
The amendment · Amends the schedule to Clause 43.01: Heritage Overlay to include Heritage Overlay – Schedule 317: The Former Nugget Factory. · Amends Planning Scheme Map 19HO to apply Heritage Overlay – Schedule 317: The Former Nugget Factory. · Amend Clauses 21.06, 21.10 and 22.01 to remove reference to the Hobsons Bay Heritage Study Amended 2010 and replace it with Hobsons Bay Heritage Study Amended 2014.
Strategic assessment of the amendment
Why is the amendment required? Amendment C99 is required to apply permanent site specific heritage controls to land at lot 3 on title plan 852861 D at 16–20 Kanowna Street, Williamstown to ensure that this locally significant heritage place is appropriately protected. While it is acknowledge that the Former Nugget Factory is affected by Heritage Overlay – Schedule 8: Government Survey Heritage Precinct, new information regarding the Nugget Factory has come to light which justifies the application of a site specific heritage overlay. The Former Nugget Factory was originally occupied by a Steam Laundry Servicing the P&O Company and other ships from the 1880’s. In approximately 1909, it became the Nugget shoe polish factory, later taken over by Reckitt and Coleman. The Former Nugget Factory is a significant part of Williamstown’s and Hobsons Bay’s history and heritage. It is a rare surviving example of the noxious trade and chemical industry which was characteristic of the Western suburbs but is now virtually extinct. Further, the Former Nugget Factory is historically significant for its association with the maritime service industries in Melbourne and shipping. It is one of the very few examples of nineteenth Century industrial fabric in Williamstown or the western suburbs and has archaeological significance for evidence of the former uses in terms of structural features, buried footings and foundation relics. Buildings covered by a heritage overlay but not listed as contributory in the Hobsons Bay Heritage Study 2010 or individually listed within the Hobsons Bay Planning Scheme are not identified as having high heritage significance and subsequently are not afforded the same level of protected from demolition as a contributory or individually cited building is. As this building has now been identified as having a higher level of heritage significance, its status under the heritage overlay should be updated to ensure it is protected from inappropriate demolition. The Lovell Chen Appraisal Report: Former Williamstown Steam Laundry Kanowna Street, Williamstown, December 2010, Lesley Alves and Associates Heritage Report: Former Nugget Factory, August 2012 and the Biosis Nugget Factory Kanowna Street Williamstown Heritage Assessment Report, October 2013 all consider the heritage significance of this building. Since the preparation of the Lovell Chen report new information has come to light regarding the heritage significance of the Former Nugget Factory. The Lesley Alves report identifies the heritage significance of the Former Nugget Factory and Biosis report recommends further controls be applied.
How does the amendment implement the objectives of planning in Victoria? The amendment facilitates the objective ‘to conserve and enhance those buildings, areas or other places which are of scientific, aesthetic, architectural or historical interest or otherwise of special cultural value’ as set out in section 4(1)(d) of the Planning and Environment Act 1987 (VIC).
How does the amendment address the environmental effects and any relevant social and economic effects? Environmental The amendment is not anticipated to have detrimental environmental impacts. Social The amendment is anticipated to have a positive social impact on the community as it provides further heritage protection for the Former Nugget Factory in the Hobsons Bay Planning Scheme (HBPS).
Economic The amendment is not anticipated to have detrimental economic impacts.
Does the amendment address relevant bushfire risk? The land is not subject to any bushfire risk.
Does the amendment comply with the requirements of any Minister’s Direction applicable to the amendment? The following directions apply to this amendment. Ministerial Direction: The Form and Content of Planning Schemes The amendment is consistent with this Ministerial Direction. Ministerial Direction 1: Potentially Contaminated Land The land is affected by an Environmental Audit Overlay which is expected to address any contamination matters. Ministerial Direction 9: Metropolitan Strategy The amendment is consistent with the draft Plan Melbourne that has been prepared by the Department of Transport Planning and Local Infrastructure (DTPLI). Ministerial Direction 11: Strategic Assessment Guidelines The amendment has been assessed against Ministerial Direction 11 and is viewed to comply. The assessment shows that the amendment provides positive social and environmental benefits and supports the relevant State and local planning policy objectives. Ministerial Direction 15: The Planning Scheme Amendment Process The amendment will comply with this Ministerial Direction.
How does the amendment support or implement the State Planning Policy Framework and any adopted State policy? The amendment supports and implements the State Planning Policy Framework through ensuring the conservation of places of heritage significance as per Clause 15.03-1 of the HBPS.
How does the amendment support or implement the Local Planning Policy Framework, and specifically the Municipal Strategic Statement? Clause 21.06-2: Built Environment and Heritage The amendment supports clause 21.06-2: Heritage, of the HBPS. The general objectives of this policy are to conserve heritage places and buildings. The amendment seeks to apply site specific heritage controls on the Former Nugget Factory, a site that is viewed to warrant such controls. Clause 22.01 -1: Heritage Policy The amendment supports clause 22.01: Heritage Policy, of the HBPS. Clause 22.01 comprises of an overall policy which applies to all heritage precincts and places in the City of Hobsons Bay. Clause 22.01-1: General Heritage Policy includes a policy basis, objectives, and decision guidelines which apply to all land within a heritage overlay. In particular, the policy has an objective to conserve characteristics that contribute to the individual identity of heritage places and precincts within Hobsons Bay and ensure that their cultural significance is not diminished by: The loss of any fabric which contributes to the significance of the heritage place or precinct. In addition to Clause 22.01-1, of relevance to Amendment C99 is Clause 22.01-2: Government Survey Heritage Precinct Policy (including HO8) which currently applies to the Nugget Factory. This precinct policy also includes an objective to retain distinctive heritage significance which is derived from: The strong associations with the maritime and railway industries that were key influences in the early historic development of Williamstown.
Does the amendment make proper use of the Victoria Planning Provisions? The amendment makes proper use of the Victorian Planning Provisions by applying the Heritage Overlay to the site.
How does the amendment address the views of any relevant agency? The amendment will require the view of Heritage Victorian who will be consulted as part of exhibition.
Does the amendment address relevant requirements of the Transport Integration Act 2010? The amendment does not impact the Transport Integration Act 2010 (VIC).
Resource and administrative costs
· What impact will the new planning provisions have on the resource and administrative costs of the responsible authority? The amendment is not likely to cause significant impacts on Council resources.
Where you may inspect this Amendment The amendment is available for public inspection, free of charge, during office hours at the following places:
Hobsons Bay City Council Altona Library Hobsons Bay Civic Centre 123 Queen Street 115 Civic Parade Altona VIC 3018 Altona VIC 3018
Altona North Library Altona Meadows Library 180 Millers Rd 1-23 Central Avenue Altona North VIC 3025 Altona Meadows VIC 3028
Newport Library Williamstown Library 13 Mason Street 104 Ferguson Street, Newport VIC 3015 Williamstown VIC 3016
The amendment can also be inspected free of charge at the Department of Transport, Planning, and Local Infrastructure website at http://www.dpcd.vic.gov.au/planning/publicinspection. Submissions Any person who may be affected by the amendment may make a submission to the planning authority. Submissions about the amendment must be received by [insert submissions due date]. A submission must be sent to: Kathleen McClusky, Manager Strategy and Advocacy, PO Box 21 Altona VIC 3018
Panel hearing dates In accordance with clause 4(2) of Ministerial Direction No.15 the following panel hearing dates have been set for this amendment: · directions hearing: [insert directions hearing date]
· panel hearing: [insert panel hearing date] Heritage Place Name Nugget Factory (Former) Address 16-20 Kanowna Street, Williamstown Heritage Overlay No. HO317 Heritage Precinct(s) Government Survey Heritage Precinct
Significance
Local Style & Type
19th and 20th Century Non- maritime Industrial Heritage Significant Dates c1887 c1945 c1908-1974 Designer
Unknown Builder
Unknown
Statement of Significance
What is Significant? The Nugget Factory (Former), comprising the two (2) storey brick building and single storey section at the rear was constructed c.1887. Originally an industrial laundry servicing the maritime industry, it was later used for the manufacturing of shoe and boot polish. It is located at 16-20 Kanowna Street, Williamstown.
How is it Significant? The Nugget Factory (former) is of local and cultural significance to the City of Hobsons Bay.
Why is it Significant? Historically the former Nugget Polish factory is significant as an example of Williamstown’s maritime industrial heritage in the late nineteenth century and its non-maritime manufacturing hi in the twentieth century and, in particular as one of the noxious trades which once characterised industry in Melbourne’s West. Originally built to provide laundry services for ships docking at Williamstown, it reflects the town’s maritime history and is rare as a surviving example of a shore–based enterprise created to facilitate shipping and trade. The progress from laundry to soap manufacturer to show polish factory reflects the close association of these industries. The building was used as the Nugget Polish Company Limited’s manufacturing base from 1908-09 to 1974, and represents the new influx of industry into Williamstown in the early twentieth century. The company manufactured Nugget shoe and boot polish, the word ‘Nugget’ became popularly associated with shoe polish in Australia. The
Hobsons Bay Heritage Study Amended 2014 - Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 16-20 Kanowna Street (former Nugget Factory) Page 1 of 5 factory later took on the manufacture of other well-known brands of household products owned by the Reckitt & Colman group. The factory is also significant for its former association with the Williamstown community, with locals employed in both management and general positions.
The building is of architectural significance, even in its modified form, for the surviving elements of nineteenth century fabric and design, expressing the response to its industrial use in the layout of the building, form and materials. History The site of the former Nugget factory on what was then called Morris Street was part of the original government surveys of Williamstown made between 1837 and 1855. The land was part of Allotment 18 & 19 Section 1 of the Parish of Cut Paw Paw purchased by William Mair in 1852. The subject site is said to have remained vacant until around 1887 when it was occupied by a laundry, offices and machinery owned by a Mrs Black. It has been suggested that the building had been the site of the P. and O. laundry. While a report in the Williamstown Chronicle in 1883 stated that the P. and O. laundry was located in four timber buildings inside the fence that divides Nelson Place and the railway, a later newspaper item in 1895 says clearly that this was the "… large Morris street premises that for so many years was carried on as a P. and O. laundry…"1, suggesting that the P. and O. Laundry relocated from the Nelson Place site to Morris Street around 1887-8.
The building was occupied by Silex Soap Company in 1896 and 1897, then lay vacant for a few years until it was leased by the Standard Centrifugal Company. In 1907 the site was advertised for sale, described as a modern two storey brick building. The ground floor, with an area of 3,235 feet, featured five large compartments, and a one storey washing and draining room with brick floor, dome and sky-lights, while the upper floor featured a large room of 1200 square feet. According to a title search, the Nugget Polish Company Limited initially signed a five year lease of the building, which was then owned by George Thompson, with a right to purchase. By October 1909 Nugget appeared to own the building. Nugget was initially a brand name of the Lane & Fitte boot polish business established by Paul Fitte and H.C. Lane in Kennington, England in 1895. In 1898 the partnership was converted to the Nugget Polish Company Limited. In 1903 F.E. Pincott joined the London office of the Nugget Polish Company and three years later was transferred to Australia where the Nugget business was developing. An office was rented in Elizabeth Street and the stock was imported. Vines writes that the decision to establish a local manufacturing base was probably affected by the new Federal Government’s decision to introduce protection on local manufacture by imposing import tariffs.
It is not known what prompted Nugget to purchase the Williamstown site, though Williamstown had developed as an industrial centre and was located near rail transport and shipping. A western suburbs location may have also been favoured due to its proximity to the raw materials used in making polish. Many industries associated with animal by-products were located near abattoirs and boiling down works. Lanolin and tallow, by-products of sheep, were ingredients of shoe polish. The move may have also been prompted by the municipality’s change of attitude and the desire to bring industry to Williamstown. The Williamstown Chronicle reported favourably on the company’s plans and stated that “Williamstown is being favourably looked upon just now as a depot wherein to establish industries.”
In 1929 the Nugget Polish Company joined with the Chiswick Polish Company to become part of the Chiswick Polish Group. In 1959 the Chiswick Polish Group was acquired by Reckitt & Colman, which was an amalgamation of Reckitt & Sons Ltd, J & J Colman, as well as Chiswick Products Ltd. After the acquisition, Reckitt & Colman and Nugget operated separately for some time. Manufacturing continued at Williamstown, which also had its own administration and sales organisation. Changes in ownership and expansion of the business saw new products manufactured at the Williamstown factory.
In 1948 Nugget Polish purchased William Fisher Pty Ltd, a Victorian company manufacturing floor wax. Additions were made to the factory in 1953 and Fishers Wax was made at Williamstown. As part of the Reckitt & Colman group Nugget took on the manufacture of Pine-O-Cleen with
1 WORTH SUPPORTING. (1895, March 2). Williamstown Chronicle p. 2. http://nla.gov.au/nla.news-article68583768
Hobsons Bay Heritage Study Amended 2014 - Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 16-20 Kanowna Street (former Nugget Factory) Page 2 of 5 manufacturing at Williamstown, before manufacturing was done at small Reckitt depots.
Edwards writes that in the 1970s there was limited scope for Nugget to expand at Williamstown, particularly after taking on the manufacture of additional Reckitt & Colman products. In 1964 Reckitt & Colman leased newly purpose built premises at Notting Hill and in 1968 the company purchased land in Clayton to build a central depot with manufacturing. In 1968 the administration and marketing executives were transferred to West Ryde in New South Wales and storage and distribution went to Clayton, allowing the Williamstown factory to expand and continue manufacturing until 1976, when all Nugget manufacturing went to West Ryde. Description As it stands today the site comprises an ‘L’ shaped two storey section fronting Moris Street, with a single storey section built into the rear. Load-bearing brick walls support timber floors and roof trusses, with corrugated iron clad hipped roofs. The facade has been modified by the stripping of cement mouldings and decoration, and conversion of the former paired arched windows into single rectangular openings with concrete lintels and steel frames. The brick facade was originally polychrome and tuckpointed but is now overpainted. Photographic and physical evidence exists to enable restoration of this facade if it is considered desireable.
Internally the buildings have been replastered in part, and modern (1970s) office partitions and suspended acoustic ceilings installed. Some evidence of former timber lining is visible above the false celing.
Various blocked openings in the back walls, and underground pipes exposed when two riveted wrought iron tanks were removed, indicate some of the industrial flant once installed.
A report in the Williamstown Advertiser in 1909 described the new factory:
There are six rooms on the ground floor with a superficial area of 3500 feet. The boiling room and engine room are on the ground floor at the rear of the building. Next to them is the filling room. An ingenious machine, patented and built in London, is used for this operation. A tray containing 88 tins is passed under the machine at one end and the machine automatically travels along a table for about six feet when it delivers the tray to a lad stationed there, every one of the tins being filled with an accuracy that can be regulated to a grain. One machine is charged with black and the other with brown polish and each can turn out 15000 tins per hour. The quality of the blacking made in Williamstown proves to be first class, the warmer climate assisting in the process. The packing department adjoins the filling room; and upstairs, which may be reached by lifts, the finishing operations are carried out. Boxes, containing a brush and pot, are put up as a travellers outfit. At present these boxes and tins are imported; but Mr Pincott is determined to make the Australian factory self contained and equipped with everything that the firms experience elsewhere can suggest. He intends to identify himself with the town and to employ as much local labor as possible.
External Condition Fair External Integrity Moderate Context Contributory part to the Williamstown Non-maritime Industrial heritage of the nineteenth and twentieth Century.
Comparative Analysis The Former Nugget Factory was part of a number of industrial buildings primarily associated with the development of the port, railways, and associated industries. This particular building was originally associated with the shipping industry when it was a laundry. It is a building that made the transition
Hobsons Bay Heritage Study Amended 2014 - Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 16-20 Kanowna Street (former Nugget Factory) Page 3 of 5 from Williamstown’s maritime industry to its non-maritime industry. The former Williamstown Steam Laundry (later Nugget factory) is one of the few remaining buildings in Williamstown that reflects the non-maritime origins and growth of Williamstown. However it could be argued that the subject site actually reflects Williamtowns’ maritime origins as well, in view of his adaptation from a laundry serving the shipping industry to a manufacturing site. In 1908 when MMBW Detail Plan 47 was drawn there were no other factories shown in the immediate vicinity. The other industrial site nearby in Morris Street, the Carboniser wool processing factory, did not open until about 1930. By the 1950s it had developed into the large James Seymour Woollen Mills, later known as the Port Phillip Woollen Mills. The Hobsons Bay Heritage Study includes several factories and industrial complexes in Newport and Spotswood, such as the Former Melbourne Glass Bottle Works [HO046] which is the oldest continuously operating industrial complex in Hobsons Bay. Although established in Spotswood in 1890 much of the extant fabric dates from the interwar era. Other factories included the former Hugh Lennon Agricultural Implement Works [HO153], W. Goetz & Sons Ltd [HO139], and the former WC Thomas & Sons Flour Mill [HO186]. The heritage study does not record any factories in Williamstown. A Williamstown contemporary of the Nugget factory, the Alfred Woollen Mills which were established in Osborne Street in 1878, have since been demolished. The Nugget factory would be one of the earliest extant manufacturing sites in Williamstown.
Very few places associated with the servicing of ships survive in Victoria. Apart from the docks and their wharf sheds themselves, there are warehouses, some shipping company offices, the customs house and the mission to seamen. The Port Melbourne Coal Depot is probably the only directly comparable place to the Steam Laundry. It might be noted that the laundry function is not exclusive to shipping, but the historical association provides the link, and the other mentioned places are no more maritime specific. For an economy so dependent on maritime transport, there are surprisingly little shore-based facilities surviving from the nineteenth century.
Other more generally comparable commercial laundries of the period are also very rare. A brief search of HERMES could only find the 1937 Relova Redressing Laundry; part of the Elizabeth Fry Retreat Laundry in South Yarra; and the 1908 Hatcher's Laundry in Abbotsford. Later country laundries in Camperdown and Portland are also identified.
From the 1860s to 1950s, boot and shoe manufacture (and its related suppliers of leather and materials), was one of the most important industries in Melbourne, concentrated as they were in the Fitzroy and Collingwood area but with factories throughout the inner suburbs. Blacking and polish makers were a small but critical component. Only one other such factory was identified in the western region and northern suburbs industrial heritage studies being the now residential conversion of the former Lewis & Witty Blacking Factory in Fitzroy, although a number of similar works once thrived in Melbourne. A comparative business was Nugget’s major competitor, the Kiwi Polish Company, which was based in Burnley Street Richmond, but the original building no longer exists.
Thematic Context
Principal Australian Historical Theme(s) Manufacturing and Processing Maritime and Non-maritime Associations Unknown Recommendations
Statutory protection Hobsons Bay Planning Scheme: Yes Heritage Victoria Register: No Register of the National Estate: No National Trust Register: No
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Management objectives Conserve elements that contribute to the significance of the place and ensure that new development is sympathetic to the historic character of the place in accordance with the relevant articles and conservation principles, processes and practice set out in the Burra Charter. Refer to the relevant Heritage local policy at Clause 22.01 of the Hobsons Bay Planning Scheme. Conserve or investigate through archaeological research, the underground and obscured fabric including pipes, footings and tanks. It would also be desirable to restore previous uses of the buildings in this heritage precinct for both maritime and non-maritime uses since its construction. References
Application 38397; Search notes, Applications for Certificates of Title, Memorial Library, Registrar-General Lovell Chen, Former Williamstown Steam Laundry, Kanowna Street, Williamstown: Appraisal Report, p.1 Lovell Chen, p.1 Argus 2 March 1907, cited in Lovell Chen, ibid., p.1 Application 38397; Search notes, Applications for Certificates of Title, Memorial Library, Registrar-General Edwards, ibid., p.12 Ibid. Vines, Gary with Andrew Ward, p.36 Ibid., p.35 Ibid. Williamstown Chronicle 7 November 1908 Edwards., p, 1, pp.44-46 Ibid., pp 57-58 Williamstown Advertiser 30 January 1909 Hobsons Bay Heritage Study – Amended 2010 – Vol. 3, Part 1, HO8, p.60 Lovell Chen, p.2 Raworth Hobsons Bay Heritage Study – Amended 2010 – Vol. 3, Part 2, p.62 Hobsons Bay Heritage Study – Amended 2010 Hobsons Bay Heritage Study – Amended 2010 – Vol. 3, Part 1, HO34, p.235
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HOBSONS BAY PLANNING SCHEME
21.06 BUILT ENVIRONMENT AND HERITAGE Proposed C99 Deleted: 25/10/2012¶ C63¶ Overview
Hobsons Bay is a municipality where the residential areas have their own special character. A high standard of design is encouraged in the municipality and gardens and trees in private areas complement green streetscapes. The amenity of residential areas will be protected from the effects of noise, air, water and land pollution. In established residential areas, dwelling styles and designs contribute to a preferred neighbourhood character in accordance with Neighbourhood Character policies. A new residential character in Strategic Redevelopment Areas will consider and respect the character of the existing surrounding area.
21.06-1 Built Environment 25/10/2012 C63
Objective 1
To ensure that new development respects and enhances the preferred neighbourhood character of the existing residential areas of Hobsons Bay.
Strategies
§ Work with development proponents to achieve outcomes that enhance the preferred neighbourhood character. § Ensure that a sense of openness in backyards is retained in precincts where this is an important character element. § Encourage high quality contemporary and innovative architectural responses and avoid period reproduction styles, especially in Heritage Overlay areas. § Minimise the loss of front garden space by discouraging additional vehicular crossings and encouraging car access from rear laneways if available. § Discourage the use of basement garages where they lead to the loss of effective landscaping or where it has the effect of increasing the height of buildings, particularly in coastal areas. § Encourage energy efficient design of new dwelling construction. § Promote innovative designs, which promote the concepts of environmentally sustainable development through energy efficient design. § Promote innovative designs which are functional, aesthetically pleasing and pleasant to live in.
Objective 2
To protect and enhance the amenity of residential areas.
Strategies
§ Encourage applicants to exceed minimum compliance with the requirements of Clause 54 and Clause 55 in the preparation of applications, to ensure the protection and enhancement of the amenity of residential areas.
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§ Encourage a high standard of site analysis and design response to facilitate innovation and creativity in design and planning for medium density housing and residential areas. § Encourage the establishment of a landscape and streetscape urban setting for new development which reflects the local and wider landscape character. § Minimise the dominance of car parking structures by setting such structures behind the main building line of the dwelling. § Protect and improve streetscapes by minimising the effects of development on street trees and nature strips, requiring the reinstatement of footpaths, kerbs and channels with appropriate materials and through the use of underground power and telecommunication lines. § Protect and improve streetscapes by minimising high solid front fences.
Objective 3
To protect the amenity of residential areas adjacent to land uses with off-site amenity impacts and protect industry and sensitive open space from constraints and adverse impacts caused by the encroachment of residential development.
Strategies
§ Ensure that future residential development which has an interface with an existing industry implements appropriate mitigation measures to protect the amenity of future residents and the continued operation of the existing industry. § Facilitate appropriate forms of residential development at the interface between residential and other land uses. For example:
Residential areas adjacent to industrial land use.
Residential areas adjacent to the coast, creeks, wetlands and grasslands.
Residential areas adjacent to parks and open space reserves.
Other urban/non urban interface areas.
§ Ensure that development adjacent to open space and along watercourses addresses, but does not dominate, the waterway or open space.
Objective 4
To provide landscaping that enhances open space areas and surrounding amenity.
Strategies
§ Encourage and undertake landscaping that:
Emphasises areas of high visibility such as gateways, major boulevards and creeks.
Uses indigenous vegetation in natural areas and introduces a wider range of species, particularly trees in the developed areas of the municipality.
Integrates all existing planting in public areas.
Takes into account the traffic calming effects of street tree planting. § Encourage improvements to the nature and quality of the landscaping along VicRoads declared roads.
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§ Give careful consideration to the landscaping of sites as a condition of the approval of applications for all types of land uses and development. § Reflect streetscape character through fencing, planting style and pavement types. § Consider views worthy of protection or screening in the design of landscaping. § Consider adjacent land uses and buildings to ascertain how these should influence landscape design. § Encourage open, well landscaped industrial precincts that enhance the appearance and amenity of the site and public areas. § Choose plantings appropriate to the architectural era in heritage areas. § Encourage private landscaping that enhances the streetscapes of the municipality and complements the landscaping of public areas. § Encourage landscaping that provides shade but does not damage buildings and pavements and is designed to take into account public safety. § Promote landscape design, particularly key focal points, in proximity to areas of nature conservation and large industrial developments.
Implementation
These objectives and strategies will be implemented by: Policy Guidance (criteria for the exercise of discretion) § Use local policy at Clause 22.04 to ensure site responsive and well designed residential development that enhances and protects the strong neighbourhood character of the residential area of Altona Meadows bounded by Central Avenue, and Queen Street to the north, Victoria Street to the east, South Avenue Merton Street and the southern boundary of properties abutting Spicer Boulevard/May Avenue to the south, and Henry Drive and Skehan Boulevard to the west. § Use local policy at Clause 22.07 – Clause 22.10 to retain and enhance identified elements that contribute to the character of Hobsons Bay and ensure that new development responds appropriately to the character of the precinct in which it is located. § Use local policy at Clause 22.11 to ensure that signs respond to the character and amenity of sensitive areas and do not detract from the character of a locality, building or site. Application of zones and overlays § Apply the Residential 1 Zone and Residential 2 Zone in established residential areas to protect and enhance existing neighbourhood character. § Apply the Mixed Use Zone in the Altona Beach activity centres to facilitate a range of residential, commercial, office limited industrial and other uses which complement the mixed-use function of the locality. Further Strategic Work § Consider applying a Schedule to the Residential 1 Zone to express local values. § Review the Hobsons Bay Neighbourhood Character Study to ensure it is delivering Council and community objectives.
Reference documents
Hobsons Bay Neighbourhood Character Study, December 2002, including Neighbourhood Character Precinct Brochures
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Hobsons Bay Landscape Design Guidelines 1999 Hobsons Bay Advertising Signs Guidelines 1999 Hobsons Bay Industrial Land Management Strategy 2008 Health and Wellbeing Plan. Hobsons Bay Municipal Public Health Plan 2007-2011 Ageing Well Strategy 2007-2017 Disability Action Plan 2008-2012
21.06-2 Heritage Proposed C99 Deleted: 25/10/2012¶ C63¶ Overview
Hobsons Bay has a rich and diverse cultural heritage which is reflected in the heritage places and precincts identified in the Hobsons Bay Heritage Study Amended 2014. It is a Deleted: 2010 community where we value our heritage and the important role it plays in helping us to understand and interpret our past and enhance our future prosperity and way of life. There is strong support for the protection and conservation of heritage places and precincts. All places of heritage significance including a site, area, building, group of buildings, structure, archaeological site, tree, garden, geological formation, fossil site, habitat or other place of natural or cultural significance and its associated land are identified, protected and conserved.
Objective 1
To protect and conserve places and precincts of heritage significance in Hobsons Bay.
Strategies
§ Avoid the demolition of buildings, or works that contribute to the value of a heritage place or precinct, particularly the incremental loss of contributory heritage places within heritage precincts which will erode heritage character and adversely affect the integrity of these places. § Encourage the conservation of elements that contribute to the significance of a heritage place or precinct in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter). § Ensure that new buildings or works do not visually dominate or cause detriment to the heritage significance of the broader heritage place. § Support the replacement of non-contributory buildings and public infrastructure with new development that responds positively to the historic context provided by surrounding heritage places. § Ensure that new development reflects the existing road layout and subdivision pattern that defines and characterises the broader heritage place.
Objective 2
To ensure that new development responds positively and enhances the unique and valued character of heritage places and precincts within Hobsons Bay.
Strategies
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§ Discourage the demolition of heritage places unless it can be demonstrated that, as appropriate:
The fabric to be removed is not significant.
The fabric to be removed is not of primary significance and its removal will not adversely affect the significance of the place.
It will assist in the long term conservation of the place.
In the case of an industrial heritage place, it will facilitate the historic use of the place and will not result in the loss of fabric considered to be of primary significance. § Discourage inappropriately designed infill development. § Assess the contribution of new development to the heritage place within the immediate context of the buildings or works, being the same street, across the road and on the next couple of allotments adjacent to the subject site. § Ensure that new buildings or works do not visually dominate or cause detriment to the heritage values of heritage places that are situated in the locality. § Give preference to infill buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006. § Discourage poorly designed additions and alterations to heritage places that are unrelated in terms of design, scale, form and materials. § Give preference to alterations or additions to existing buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. § Ensure that new development does not distort the historic evidence provided by the heritage place by simply copying or reproducing historic styles or detailing.
Objective 3
To improve awareness, understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places.
Strategies
§ Ensure places of cultural heritage are conserved and where appropriate, are interpreted and have appropriate settings. § Maintain appropriate settings for heritage places. § Where redundant heritage buildings such as former industrial buildings and hotels cannot be retained, encourage and support their adaptive use to recognise and protect the physical and cultural heritage significance of the building and its contribution to development of Hobsons Bay.
Implementation
These strategies will be implemented by: Policy Guidance (criteria for the exercise of discretion) § Use local policy at Clause 22.01 when considering to use or develop heritage places to protect and enhance the heritage character of Hobsons Bay and in the assessment of
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applications to ensure new development responds positively to special features such as views, vistas, significant vegetation and landmarks and enhances the historic cultural landscape character found in a street or precinct. § Use local policy at Clause 22.11 in the consideration of signage applications to ensure that signs respect the period and style of the host building and do not dominate or obscure its architectural form or features and use relevant materials, fonts and colours. § Require a photographic record of the building where approval has been granted for its demolition, where appropriate. § Assess applications for infill development in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006. § Assess applications for alterations and additions in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. § Use the Aboriginal cultural resource map and guidelines provided by Aboriginal Affairs Victoria when considering an application to develop or rezone land. Other § Promote awareness and appreciation of the importance and value of the cultural heritage of Hobsons Bay to improve understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places. § Lead by example in the management of Council’s own heritage assets. Application of zones and overlays § Apply the Heritage Overlay to heritage places identified in the Hobsons Bay Heritage Study Amended 2014, by Heritage Victoria, or other relevant heritage studies. Deleted: 2010 Further Strategic Work § Finalise and adopt the comprehensive Heritage Conservation Study for coastal areas. § Undertake a Significant Tree Study. § Undertake a Port of Williamstown Heritage Study in conjunction with other relevant statutory authorities. § Undertake a Post-war Heritage Study. § Prepare Conservation Management Plans or management guidelines for other Council- owned or managed heritage assets as required, including:
Historic public infrastructure and street trees.
Historic sporting pavilions.
Dennis Reserve, Williamstown and Logan Reserve, Altona.
Review and update the Hobsons Bay Heritage Study Amended 2014 as appropriate. Deleted: 2010
Reference Documents
Hobsons Bay Heritage Study Amended 2014 Deleted: 2010 Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006 Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 The Burra Charter (The Australian ICOMOS Charter for Places of Cultural Significance)
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21.10 INFRASTRUCTURE Proposed C99 Deleted: 25/10/2012¶ C63¶ Overview
A range of community facilities and services are required to meet the needs and lifestyles of the local community to assist in sustaining, supporting and promoting communities and provide a better quality of life for Hobsons Bay residents.
Objective 1
To deliver necessary community infrastructure to enhance the liveability of Hobsons Bay residents.
Strategies
§ Provide appropriately located community facilities and services in response to community needs. § Facilitate the provision of a range of well designed community facilities and services which meets the needs and lifestyles of the community to provide for a better quality of life. § Ensure that the cost of new road and transport infrastructure required to serve specific development is met by the developer. § Ensure that developers provide a continuous network of bicycle paths and pedestrian facilities in new residential subdivisions that contributes to community health and well being by encouraging walking and cycling.
Implementation
These strategies will be implemented by: Policy Guidance (criteria for the exercise of discretion) § Use local policy at Clause 22.02 in the consideration of planning applications to ensure that new infrastructure conserves the characteristics that contribute to the identity of heritage places and precincts and does not diminish their cultural significance. § Use local policy at Clause 22.04 in the consideration of planning applications to address the lack of public transport, parking and traffic issues associated with narrow roads and the lack of open space in Altona Meadows. § Use local policy at Clause 22.05 in the consideration of planning applications to recognise the particular parking requirements of Douglas Parade /Ferguson Street and Nelson Place commercial precincts. § Use local policy at Clause 22.06 in the consideration of planning applications to encourage a centre with a positive identity for the Altona Beach Activity Centre. Application of zones and overlays § Apply the Public Use Zone to recognise land for community facilities and services. § Apply the Special Use Zone 1 to provide for areas in private ownership to be used as private sports grounds and/ or religious and educational establishments, as appropriate. § Apply the Road Zone to identify land to identify significant existing and proposed roads. Further Strategic Work
MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.10 PAGE 1 OF 2 HOBSONS BAY PLANNING SCHEME
§ Review the level of existing facilities and services to meet the needs of the community. § Facilitate the completion of the Council’s Community Infrastructure Plan.
Reference Documents
Health and Wellbeing Plan - Hobsons Bay Municipal Public Health Plan 2007-2011 Ageing Well Strategy 2007-2017 Disability Action Plan 2008-2012 Kororoit Creek Regional Strategy 2005-2030 Hobsons Bay City Council Kororoit Creek Masterplan 2006 Point Gellibrand Park Coastal Heritage Park Master Plan (Revised 2003) Williamstown Foreshore Strategic Review 2010 Sustainable Tourism Strategy 2006-2012 Rehabilitation and Management Plan Sandy Point and Greenwich Bay Foreshore Newport 1998 Hobsons Bay Heritage Study Amended 2014 Deleted: 2010 Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006 Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 The Burra Charter (The Australian ICOMOS Charter for Places of Cultural Significance) Hobsons Bay Advertising Signs Guidelines1999 Hobsons Bay Landscape Design Guidelines 1999 Hobsons Bay Integrated Transport Strategy 2006 Williamstown Activity Centre Parking Study 2009 Hobsons Bay Strategic Bicycle Plan 2003 Hobsons Bay Road Safety Strategy 2008-2010
MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.10 PAGE 2 OF 2 HOBSONS BAY PLANNING SCHEME
22 LOCAL PLANNING POLICIES Proposed C99 Deleted: 06/01/2011¶ C68 22.01 HERITAGE POLICY Proposed C99 Deleted: 06/01/2011¶ This Local Planning Policy affects areas included in the Heritage Overlay and comprises C68¶ the following: § 22.01-1: General Heritage Policy § 22.01-2: Government Survey Heritage Precinct Policy § 22.01-3: Private Survey Heritage Precinct Policy § 22.01-4: Hannan’s Farm (Ramsgate Estate) and Williamstown Beach Heritage Precincts Policy § 22.01-5: Ferguson Street Civic and Commercial Heritage Precinct Policy § 22.01-6: Nelson Place Heritage Precinct Policy § 22.01-7: Cox’s Garden Heritage Precinct Policy § 22.01-8: Housing Commission of Victoria Estates Heritage Precincts Policy § 22.01-9: Newport and Spotswood Residential Heritage Precincts Policy § 22.01-10: Newport Civic and Commercial Heritage Precinct Policy § 22.01-11: Industrial Heritage Places Policy
Using this Policy
This policy comprises an overall heritage policy, which applies to all heritage precincts and places within the City of Hobsons Bay. There are also additional sub-policies for specific heritage precincts and places within the municipality and a sub-policy on Industrial Heritage Places. Each individual sub-policy has its own policy basis, objectives, and policy statements that should be considered in conjunction with the overall policy. The Hobsons Bay Heritage Study Amended 2014 informs this policy and should be Deleted: 2010 referred to in identifying the significance of the heritage precincts. Deleted: A ‘heritage precinct’ is a group of heritage places identified by the Hobsons Bay Heritage Study Amended 2014. Deleted: 2010 The term ‘heritage place’ refers to: § A place that is individually cited in the Hobsons Bay Heritage Study Amended 2014. Deleted: 2010 § A place that is contributory to the significance of a heritage precinct.
Application requirements
Where a permit is required for development in a Heritage Overlay, an application must be accompanied by information that adequately responds to the relevant sections of the Hobsons Bay Heritage Study Amended 2014, the Guidelines for Infill Development in Deleted: 2010 Heritage Areas in Hobsons Bay 2006 and the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006.
22.01-1 GENERAL HERITAGE POLICY Proposed C99 This policy applies to all land included within a Heritage Overlay. Deleted: 06/01/2011¶ C68¶
LOCAL PLANNING POLICIES – CLAUSE 22.01 PAGE 1 OF 21 HOBSONS BAY PLANNING SCHEME
Policy basis
The Hobsons Bay Municipal Strategic Statement identifies the need for a local policy to ensure that the cultural heritage of Hobsons Bay is conserved and enhanced. The communities of Hobsons Bay have played an important role in the historic development of Victoria and the unique history of Hobsons Bay is illustrated by a wide variety of heritage places that include buildings, neighbourhood precincts, trees and landscapes, and urban forms. The heritage places of Hobsons Bay reflect the key themes that have shaped the development of the city since the establishment of Williamstown in the 1840s as the first port of Melbourne, through the development of Newport and Spotswood during the Federation and Interwar periods associated with the growth of railways and related industries, to the post-war industrial and residential expansion that transformed Altona and Laverton. These heritage places are important for the reasons described in the Hobsons Bay Heritage Study Amended 2014, as well as the broader social, cultural and economic benefits they Deleted: 2010 bring by: § Providing historic continuity, which enables the complex layering of the history of Hobsons Bay to be understood and interpreted. § Enhancing the character and amenity of the city by contributing to the unique identity of each neighbourhood. § The heritage of Hobsons Bay is highly valued by the community and there is strong support for controls and policy to protect and conserve places of identified heritage significance. § This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2014. Deleted: 2010
Objectives
To conserve characteristics that contribute to the individual identity of heritage places and precincts within Hobsons Bay and ensure that their cultural significance is not diminished by: § The loss of any fabric which contributes to the significance of the heritage place or precinct; § Inappropriate new development; To conserve heritage places in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (Burra Charter). To ensure new development is of a high quality design that creatively interprets and responds positively to the historic context provided by the heritage place or precinct. To support the replacement of non-contributory buildings with new development that responds positively to the historic context provided by surrounding heritage places. To ensure new development becomes a valued addition, which complements the aesthetic qualities of a heritage place or precinct. To ensure new development does not distort historic evidence of heritage places by copying or reproducing historic styles or detailing. To encourage the viable use of buildings as part of their conservation. To ensure a consistent approach to the conservation of heritage places. To conserve heritage places and precincts based on the statement of significance for the place or precinct.
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To improve community awareness of the importance and value of heritage places and precincts. To ensure new development responds positively to special features such as views, vistas, significant vegetation and landmarks. To ensure landscaping enhances the historic cultural landscape character found in a street or precinct. To ensure new development does not visually dominate a heritage place or precinct.
Policy
Exercising discretion It is policy to conserve heritage places and precincts by: § Ensuring the maintenance and preservation of heritage places; § Ensuring the restoration or reconstruction of fabric where opportunities arise. § Discouraging the demolition of heritage places unless the demolition is only part of the heritage place and it can be demonstrated to the satisfaction of the Responsible Authority that, as appropriate: § Ensuring the fabric to be removed is not significant; § Ensure the fabric to be removed will not adversely affect the significance of the heritage place; § Ensuring development will assist in the long term conservation of the heritage place; § In the case of an industrial heritage place, ensuring development will facilitate the historic use of the heritage place and will not result in the loss of fabric of primary significance; § Discouraging the demolition of heritage places unless it can be demonstrated to the satisfaction of the Responsible Authority that the structural integrity of the heritage place has been lost; § Generally not accepting the poor condition or low integrity of a heritage place as justification for its demolition, particularly if in the opinion of the Responsible Authority the condition of the heritage place has deliberately been allowed to deteriorate; § Maintaining and enhancing the setting of heritage places and precincts by the removal of non-significant fabric and by ensuring that infill buildings or additions to existing buildings are visually recessive. This includes views and vistas to a heritage place from public places; § Encourage the removal of alterations and additions except where they contribute to the significance of the heritage place; § Ensure new infill buildings, alterations and additions to existing buildings are visually recessive and compatible in scale, siting, design, form and materials with the character of the heritage place or precinct; § Ensure new infill buildings have regard to the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006; § Ensure alterations and additions to contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006; § Ensure alterations and additions to non-contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006;
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§ Conserve early public realm infrastructure such as basalt gutters, unmade roadside verges, bluestone and concrete kerbs, channels, footpaths and laneways are conserved and reconstructed as appropriate; § Discourage vehicle crossovers and off-street parking provision at the front of heritage places, unless it can be demonstrated to the satisfaction of the Responsible Authority that these features were historically found in the street where the property is located and that no suitable alternative exists; § Significant street trees should not be removed unless they die or in the opinion of the Responsible Authority become a safety risk. If a significant street tree is removed, it should be replaced with a semi-advanced species to the satisfaction of the Responsible Authority; § Original front fences and related features such as lynch gates and pergolas should be retained; § If a front fence is not significant, low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling should be provided, unless historic evidence to the satisfaction of the Responsible Authority can be provided for an alternative design; § Ensure subdivision is compatible with the original subdivision layout and character of the heritage place or precinct; § Ensure advertising signs have regard to the Hobsons Bay Advertising Sign Guidelines 1999 and are traditional in form and location; § Encourage historical research of heritage places and precincts and promote their physical link with history.
Decision Guidelines
It is policy that before deciding on an application the Responsible Authority must consider, as appropriate: § The significance of the heritage place or precinct as described in the Hobsons Bay Heritage Study Amended 2014 and whether the proposed buildings or works will Deleted: 2010 adversely affect the cultural significance of the heritage place or precinct; § Whether the application has responded appropriately to the relevant design guidelines in the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 or the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. Whether the proposed buildings or works will assist in the conservation of the place by: § Maintaining, protecting, restoring, repairing or stabilising significant fabric; § Supporting the continued original use of the building by enabling it to be upgraded to meet present day requirements and standards; § Implementing works in accordance with a Conservation Management Plan that has been prepared to the satisfaction of the Responsible Authority; § Allowing an alternative use (where this is permitted by the Planning Scheme) when the original use of the building is no longer viable, or in accordance with a Conservation Management Plan; § Whether the proposed buildings or works will have an adverse effect on a significant tree identified by the Hobsons Bay Heritage Study Amended 2014, or any tree that Deleted: 2010 contributes to the setting of a heritage place or precinct.
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Policy references
§ Hobsons Bay Heritage Study Amended 2014. Deleted: 2010 § Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006 § Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 § Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (The Burra Charter). § Hobsons Bay Advertising Sign Guidelines 1999 (or any subsequent version).
22.01-2 GOVERNMENT SURVEY HERITAGE PRECINCT POLICY Proposed C99 This policy applies to all land and heritage places within the Government Survey Heritage Deleted: 06/01/2011¶ C68¶ Precinct, (HO8), the Cecil Street Heritage Precinct, (HO1), Electra Street Heritage Precinct (HO4), Esplanade Residential Heritage Precinct (HO6), Hanmer Street Heritage Precinct (HO12), Pasco Street Heritage Precinct (HO24), part of the Railway Crescent Heritage Precinct east of Giffard Street (HO28), Verdon Street Heritage Precinct (HO32), and places individually listed in the Schedule to the Heritage Overlay in the area generally bounded by Ferguson Street, Nelson Place, Kanowna Street, Morris Street, Esplanade, Giffard Street, and Railway Place in Williamstown.
Policy basis
The Government Survey Heritage Precinct comprises the parts of “Williams Town” originally surveyed by Robert Hoddle and later extended by the Victorian Colonial Government between 1837 and 1855. Historically, the precinct demonstrates the most important and prosperous phases in the development of Williamstown, from the mid- nineteenth to early twentieth centuries associated with the development of the port and later influenced by the development of railways and related industries. The early settlement of Williamstown and its importance as a port and defence facility, also contributes to a broader understanding of the history of Victoria. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To retain the distinctive cultural heritage significance of this precinct which is derived from: § The strong associations with the maritime and railway industries that were key influences in the early historic development of Williamstown; § The strong associations with the formative civic, public and commercial development that occurred in Williamstown during the nineteenth century; § The setting and visual prominence of the civic, public and commercial buildings on key sites throughout the precinct, and in particular the grouping of related basalt public buildings in Cecil Street and public buildings in Electra Street; § The strong and distinctive urban form created by the regular grid subdivisions, separated by areas of open space, which exemplifies nineteenth century town planning; § The pre-1860 buildings, which demonstrate the very early origins of this precinct and comprise one of the most significant collections of buildings from this period within Victoria; § The Williamstown railway line corridor;
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§ The generally uniform scale (predominantly single storey), siting (generally detached, parallel to frontage), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on rectangular regular shaped allotments) of residential buildings, which provide a unifying element throughout the precinct. Typically, car parking is not provided on site; § Regular shaped lots with frontages predominantly between 6-9 metres, which create a distinctive pattern of development; § The rare surviving examples of early housing construction such as pre-fabricated timber dwellings, basalt houses, and attached row houses with undivided roofs; § The unique nineteenth century road layout in key streets, and other historic public infrastructure; § Significant trees on public and private land, which contribute to the cultural landscape character.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct generally with detached siting; § Simple single or double fronted building forms; § Horizontal weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; § Simple hipped corrugated iron or slate roof forms; § Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped; § Eaves and verandahs in street elevations. It is policy that alterations and additions to existing dwellings should: § Be single storey scale when viewed from a street (not including a right-of-way); § Be sited to the rear of the existing building; § Be setback from side boundaries to reflect the existing pattern of development; § Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; § Be compatible with the heritage place’s roof form and material as visible from the street; § Be the same as the significant fabric of the facade or profile of the main roofline as viewed from the street; § Retain contributory features such as chimneys and bluestone foundations; § Avoid windows in upper floor elevations facing the street; § Be ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank, if grouped.
22.01-3 PRIVATE SURVEY HERITAGE PRECINCT POLICY Proposed Deleted: 06/01/2011¶ C99 This policy applies to all land and heritage places within the Private Survey Heritage C68¶ Precinct (HO27), the Power Street Heritage Precinct (HO26), Lenore Crescent Heritage Precinct (HO18), Macquarie Street Heritage Precinct (HO19), James Street Heritage Precinct (HO17), The Strand Heritage Precinct (HO31), Dover Road and John Street Heritage Precinct (HO3), and places individually listed in the Schedule to the Heritage
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Overlay in the area generally bounded by North Road, The Strand, Ferguson Street, Power Street, and Melbourne Road in Williamston and Newport.
Policy basis
Historically, the Private Survey Heritage Precinct is significant for its ability to illustrate the two main development phases of the city during the Victorian (port rise and decline) and Edwardian to Interwar periods (railway and manufacturing industry). This has created a distinctive layering of history, which illustrates how this part of Williamstown and Newport developed quite differently to the Government Survey Heritage Precinct to the south of Ferguson Street. Compared to other precincts in Hobsons Bay, it is more heterogeneous in character and is aesthetically significant for the groups of predominantly late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as James and Macquarie Streets, to almost exclusively Interwar enclaves such as Federal Street, Chandler Street and Lenore Crescent. Housing in other streets, although stylistically different, share common elements of scale, siting, materials and roof forms, which create cohesive groups. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character. Another notable element is the Victorian and Interwar commercial buildings and hotels, which are typically located on prominent corner sites and sited on the frontage throughout the precinct. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To retain the distinctive cultural heritage significance of this precinct which is derived from: § The extent of speculative subdivision within Williamstown during the nineteenth century, which created a less regular street pattern compared to other parts of Williamstown and Newport; § The ability to illustrate, often within the same street, two key periods in the development of Williamstown from maritime to railway and other industries; § The commercial development scattered throughout the precinct that illustrates how self- contained communities developed in the era before the use of cars became widespread; § The pre-1860 buildings, which demonstrate the early origins of parts of this precinct closer to Ferguson Street. The contrast between streets that are relatively homogeneous in character with streets that are more heterogeneous in character; § The architectural diversity of the residential buildings comprising villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hip or gable roof), and a regular subdivision pattern (single dwellings on regular allotments), which provide a unifying element throughout the precinct. Typically, car parking was not provided on site until later in the Interwar period; § Regular shaped lots with wide frontages predominantly between 10-15 metres, which create a distinctive pattern of development; § Landmark hotels and commercial buildings which are typically sited on prominent street corners.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct with double storey elements setback to minimise visibility from the street;
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§ Detached siting parallel to the frontage, unless angled siting is a characteristic of the street or group of houses where a property is located; § Simple single or double fronted building forms with symmetrical plans in streets or groups of houses that have predominantly Victorian character, or asymmetrically designed plans in streets or groups of houses with predominantly Edwardian or Interwar character; § Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; § Hipped corrugated iron or slate roof forms, except in streets or groups of houses, which have predominantly Edwardian or Interwar character, where terracotta tiles may be provided; § Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped; § Eaves and verandahs in street elevations. It is policy that alterations and additions to existing dwellings should: § Be single storey scale when viewed from the street, (not including a right-of-way); § Be sited to the rear of the existing building; § Include side setbacks that reflect the existing street pattern; § Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; § Be compatible with the roof form and material of the heritage place when visible from the street; § Not significantly alter the fabric of the facade or profile of the main roofline as viewed from the street; § Retain contributory features such as chimneys and bluestone foundations; § Avoid windows in upper floor elevations facing the street; § Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank if grouped.
22.01-4 HANNAN’S FARM (RAMSGATE ESTATE) AND WILLIAMSTOWN BEACH Proposed HERITAGE PRECINCTS POLICY C99 Deleted: 06/01/2011¶ This policy applies to all land and heritage places within Hannan’s Farm Heritage Precinct C68¶ (HO13), Victoria Street Heritage Precinct (HO33), Williamstown Beach Heritage Precinct (HO34), part of Railway Crescent Heritage Precinct west of Giffard Street (HO28), including places individually listed in the Schedule to the Heritage Overlay with frontage to Castle Street, Collins Street, Esplanade (part), Forster Street, Garden Street, Giffard Street (part), Gellibrand Street, Hannan Street, Knight Street, Langford Street, Laverton Street, Osborne Street (part), Railway Crescent (part), Stewart Street, Vera Street, Victoria Street and Winifred Street in Williamstown.
Policy basis
This precinct includes those parts of South Williamstown generally to the west of the Giffard Street that were subdivided during the late nineteenth century. It includes Victoria and Hannan Streets which were part of the Ramsgate Estate created in the late 1880’s by the subdivision of Hannan’s Farm by two well-known Williamstown figures, AT Clark and John Morgan. This precinct is significant as an intact late nineteenth and early twentieth
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century residential area comprising predominantly Victorian and Edwardian era houses with common or similar characteristics of design, siting and scale that create cohesive and relatively homogeneous streetscapes. Many are externally intact and others, although altered, still retain their distinctive form and siting and hence contribute to the precinct. Many also have mature gardens that complement the mature street trees in Victoria and Osborne Streets. Victoria Street is particularly notable for its many fine examples of Edwardian and interwar villas and bungalows. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To retain the distinctive cultural heritage significance of this precinct which is derived from: § The strong associations with individuals who were prominent in civic and social life in Williamstown in the late nineteenth and early twentieth century; § The Victorian-era dwellings, which illustrate the late nineteenth century origins of this area, and include some of the best examples of Italianate architecture in Williamstown; § The generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regular shaped allotments) of dwellings, which create cohesive streetscapes. Typically, there is no provision for on-site car parking; § Regular shaped lots with wide frontages of predominantly 10-15 metres, which create a distinctive street pattern; § The fine collection of Edwardian and interwar ‘picturesque’ villas and bungalows in Victoria Street; § Mature trees on public and private land that provides an appropriate cultural landscape, which is related to the main period of development; § The Rifle Club Hotel and the Williamstown Croquet Club pavilion, which are notable landmarks at the northern entrance to Victoria Street; § The original street layout in Osborne Street, which includes unmade road verges and street trees; § Views along Victoria and Hannan Streets to the Bay; § The Williamstown Botanic Gardens.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct with detached siting parallel to the frontage; § Simple single or double fronted building forms, except in Victoria Street where more complex asymmetrically designed forms may be appropriate; § Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; § Hipped corrugated iron or slate roof forms, except in Victoria Street where more complex hipped and gable roof forms in terracotta tiles may be provided; § Rectangular, timber-framed and vertically orientated window style if single, or in a horizontal bank if grouped windows are visible from the street;
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§ Eaves and verandahs or porches in street elevations. It is policy that alterations and additions to existing dwellings should: § Be single storey in scale when viewed from a street, not including a right-of-way; § Be sited to the rear of the existing dwelling; § Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings; § Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; § Be compatible with the roof form and material of the heritage place when visible from the street; § Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; § Retain contributory features such as chimneys and bluestone foundations; § Avoid windows in upper floor elevations facing the street; § Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank if grouped.
22.01-5 FERGUSON STREET CIVIC AND COMMERCIAL HERITAGE PRECINCT Proposed POLICY C99 Deleted: 06/01/2011¶ C68¶ This policy applies to all land and heritage places within the Ferguson Street Civic and Commercial precinct (HO7) including places individually listed in the Schedule to the Heritage Overlay in Ferguson Street in Williamstown.
Policy basis
Historically, Ferguson Street formed the northern boundary of Williamstown as originally surveyed by Hoddle in 1837 and is significant for its ability to illustrate key phases in its development as a city from the mid-nineteenth to the mid-twentieth century. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To conserve and enhance the historic character and amenity of Ferguson Street that is an important part of its identity and enhances its appeal as a retail centre. To retain the distinctive cultural heritage significance of this precinct, which distinguishes it from other precincts in Hobsons Bay and is derived from: § The commercial buildings that demonstrate the later development of Ferguson Street, which replaced Nelson Place as the main commercial and civic centre of Williamstown between the late nineteenth and mid-twentieth century; § The setting and visual prominence of landmark civic and commercial buildings on key sites throughout the precinct such as the former Williamstown Town Hall and Municipal Offices and the former Punshon’s Federal Stores; § The strong associations with the maritime industries and professions that were key influences in the early historic development of Williamstown; § The predominant two storey scale, siting (attached and constructed to the property line), construction (face or rendered brick), roofs concealed behind parapets, and subdivision
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pattern (narrow frontages) of surviving commercial heritage places, which provide a consistent element throughout the precinct; § The rare surviving original shopfronts, awnings and other early detailing on some buildings.
Policy
It is policy to encourage infill development that has: § Respect for the double storey scale of the precinct with vertical proportions. Development above two storeys may be appropriate if the upper level is setback to minimise visibility from Ferguson Street; § Attached siting with no front setback; § Face pressed brick, smooth rendered brick or masonry style for walls that are visible from Ferguson Street or from streets and lanes that intersect Ferguson Street; § Hipped roof form concealed behind parapets; § Timber framed rectangular windows in upper elevations with vertical proportions if single or a horizontal bank if grouped. Large unbroken expanses of glass on upper facades are generally not supported; It is policy that alterations and additions to existing dwellings should: § Be single storey scale or not exceeding the height of the existing building on the site; § Be sited to the rear of the existing building; § Be the same, or a contemporary interpretation of the wall cladding of the existing building on the site, for walls visible from the street; § Be compatible with the roof form and material visible of the heritage place from the street; § Avoid alterations to significant fabric of the principal façade, or the profile of the main roofline as viewed from the street; § Retain contributory features such as chimneys and bluestone foundations; § Avoid windows in upper floor elevations facing the street; § Promote ground floor windows that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped when visible from the street. It is policy that: § Early examples of painted or other types of advertising signage are conserved.
22.01-6 NELSON PLACE HERITAGE PRECINCT POLICY Proposed C99 This policy applies to all land and heritage places within the Nelson Place Heritage Precinct Deleted: 06/01/2011¶ C68¶ (HO21) including places individually listed in the Schedule to the Heritage Overlay in Nelson Place (part) and Cole Street (part) and 1 Parker Street in Williamstown.
Policy basis
The Nelson Place Heritage Precinct is historically significant as it was the major commercial centre of Williamstown in the nineteenth century, and is the area that perhaps best demonstrates the strong relationship between the development of the city and the development of the port. It includes some of the earliest commercial development in Williamstown and is important for its strong and long-standing associations with maritime activities that defines the essential character of Williamstown and distinguishes it within the
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metropolitan area. It also illustrates how self-sufficient close-knit communities were established during the nineteenth century. The Nelson Place Heritage Precinct is also significant as a remarkably intact and cohesive nineteenth century commercial precinct, which is distinguished by its intact and fine examples of nineteenth century commercial architecture from the mid-to-late Victorian period, which illustrate the prosperity of the port at that time. It is also notable for its direct visual relationship with the port and the related cultural landscape provided by the Commonwealth Reserve. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To conserve and enhance the historic character and amenity of Nelson Place that is an integral part of its identity and enhances its appeal as a cultural tourism precinct in a metropolitan context. To retain the cultural heritage significance of this precinct which is derived from: § The pre-1860 buildings, which comprise one of the most significant collections of commercial buildings from this period within Victoria; § The strong associations with the maritime industry and development of the Port of Williamstown during the nineteenth century; § The almost continuous and intact group of two-storey Victorian buildings which are harmonious in scale and siting and display a variety of architectural detail typical of late nineteenth century commercial development; § The presence of a number of substantial nineteenth century commercial buildings, especially banks, designed by noted Melbourne architects; § The unique visual and landscape relationship between the two-storey commercial development in Nelson Place, Commonwealth Reserve and Hobsons Bay, which is not found elsewhere in Melbourne; § The unusual geometry of the intersection between Parker and Cole Streets with Nelson Place, which is emphasised by the placement of the former Williamstown Post Office on the apex of Parker and Cole Streets, and framed by the banks on either corner; § Sections of the roadway that retain basic early century layouts which highlight the period of the precinct, including asphalt and some stone footpaths and basalt kerb and channel with verandah fixings evident in the kerb; § Rare wrought-iron balustrades to open drain inlets and stone paved carriageways at the rear of some sites; § Regular shaped lots with frontages typically between 7-11 metres, which create a distinctive pattern of development; § The mature planting, rotunda, and trees in the Commonwealth Reserve, and the mature street trees in Nelson Place that provide a related cultural landscape setting for the architecture;
Policy
It is policy to encourage infill development that has: § Respect for the double storey scale of the precinct. § Attached siting with no front setbacks.
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§ Face or rendered brick for walls visible from Nelson Place, Cole Street, Parker Street or Thompson Street. § Hipped roof forms concealed behind parapets. § Upper floor elevations in windows visible from the street should be rectangular with vertical proportions if single. Large unbroken expanses of glass on upper facades are not permitted. It is policy that alterations and additions to existing dwellings should: § Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street. § Promote the use external colours and materials that compatible with the original colours and materials of the heritage place. § Promote roof forms visible from the street that relate to that of the heritage place. § Promote windows and other building openings visible from the street that relate to those of the heritage place. It is policy that: § Early examples of painted or other types of advertising signage are conserved. § Reconstruction of verandahs should be in accordance with the Nelson Place Verandahs Guidelines, Helen Lardner Conservation & Design, 2002.
22.01-7 COX’S GARDEN HERITAGE PRECINCT POLICY Proposed C101 This policy applies to all land and heritage places within the Cox’s Garden Heritage Deleted: 06/01/2011¶ C68¶ Precinct (HO2) including places individually listed in the Schedule to the Heritage Overlay in Cox’s Garden.
Policy basis
The Cox’s Garden Heritage Precinct was one of the first private subdivisions created just north of the original government subdivision of Williamstown and illustrates the optimistic early speculative subdivision that occurred in anticipation of the future development of the port and the township. It contains at least two rare examples of small pre-1860 timber houses, which are amongst the oldest group of houses in Williamstown and the oldest group of timber houses in the metropolitan area. It is also important for the historical associations of early residents of Cox's Garden with the early maritime pursuits that distinguish Williamstown in the metropolitan area. The Cox’s Garden Heritage Precinct is now a rare surviving example of the small private subdivisions that were created in the area to the north of Ferguson Street with their distinctive “cheek by jowl” character of modest, cheaply constructed and often prefabricated housing erected for working class people during the earliest period of settlement. The historic character of this precinct, so different to the spacious streets in the Government Survey to the south of Ferguson Street, may still be understood and interpreted despite the loss of all but one house on the west side and the development of a public car park. Few other streets, either in Williamstown or the metropolitan area, have retained this distinctive early character. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To support the reconstruction of buildings on the west-side of the street.
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To retain the distinctive cultural heritage significance of this precinct which is derived from: § The rare pre-1860 timber cottages, which illustrate the early development of Cox’s Garden and are part of one of the most significant collections of buildings from this period within any municipality in Victoria; § The strong association with maritime industries that is an integral part of the character of Williamstown; § The uniform single storey scale, siting (detached, parallel and close to the frontage), construction (predominantly horizontal weatherboard with simple hip roof) and subdivision pattern (single dwellings on narrow rectangular allotments) of the heritage places. Typically, there is no provision for car parking on site; § Regular shaped lots with average frontages of 10 metres, which creates a distinctive pattern of development.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct with detached siting parallel to the frontage; § Minimal frontage setbacks and small side setbacks; § Horizontal weatherboards of walls visible from Cox’s Garden; § Simple hipped roof forms of corrugated iron; § Symmetrical facade composition with centrally located doorways flanked by rectangular double hung timber-framed windows that are vertically orientated; § Narrow eaves and verandahs in street elevation. It is policy that alterations and additions to existing dwellings should: § Be single storey in scale when viewed from a street; § Be sited to the rear of the existing building; § Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings; § Promote the conservation of original or significant fabric, and missing fabric reconstructed where opportunities arise; § Promote horizontal weatherboard cladding for walls visible from Cox’s Garden; § Promote roof forms and material visible from the street that is compatible with that of the heritage place; § Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; § Avoid windows in upper floor elevations facing the street; § Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank, if grouped. It is policy to: § Encourage construction of the original street detailing including basalt kerb and channel and asphalt footpaths; § Discourage vehicle crossovers at the frontage of sites;
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§ Encourage low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling, unless historic evidence to the satisfaction of the Responsible Authority can be given for an alternative design.
22.01-8 HOUSING COMMISSION OF VICTORIA ESTATES HERITAGE PRECINCTS Proposed POLICY C99 Deleted: 06/01/2011¶ C68¶ This policy applies to all land and heritage places within Housing Commission of Victoria - Champion Road Estate Heritage Precinct (HO15) and Housing Commission of Victoria - West Newport Estate Heritage Precinct (HO16) including places individually listed in the Schedule to the Heritage Overlay.
Policy basis
The Housing Commission of Victoria (HCV) developed the Champion Road and West Newport estates during the mid to late 1940s. These estates represented a new approach to housing provision to address criticism of the poor quality of earlier HCV estates and respond to criticism of the HCV’s policy of slum reclamation in the Interwar period. Each estate comprises semi-detached, gabled houses arranged in mirror-image pairs with near identical siting, orientation and setbacks. Some retain original low front fencing, typically wire and steel posts. Houses in the Champion Road Estate were constructed of red or clinker brick or stuccoed concrete walls. The West Newport Estate was the first to use the “Fowler” method of prefabricated concrete construction using panels made at the HCV’s plant at Holmesglen. The homogeneous Interwar character of both precincts is enhanced by original concrete roads and footpaths, mature trees in some streets, and centrally located areas of open space to which some of the houses are orientated. These features demonstrate the efforts made by the HCV to promote these areas as model housing estates. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To support the upgrading of these dwellings to meet modern lifestyles in a manner that is compatible with their significance. To retain the distinctive cultural heritage significance of these precincts which is derived from: § The homogeneous Interwar character that is demonstrated by uniform single storey scale, semi-detached siting with identical front and side setbacks, brick (Champion Road) or concrete (West Newport) construction, tiled gable roofs, and regular subdivision pattern single dwellings) of the contributory heritage places; § The strong associations with the Housing Commission of Victoria as early examples of new responses to public housing in the post-war period; § The original public realm elements including the concrete streets and footpaths, parkland, which enhance the Interwar character of the estates; § Regular shaped lots with average frontages of 12 metres, which create a distinctive pattern of development.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct;
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§ Identical building footprints that mirror the adjoining attached dwelling for the parts of the dwelling visible from the street; § Red or clinker style brick in Gem Street or Cerberus Crescent, or smooth rendered brick or masonry construction in other streets for walls visible from the street; § Simple gable roof forms of corrugated iron or terracotta tiles that mirror the adjoining attached dwellings; § Similar regular fenestration to the original houses in walls visible from the street; § The provision of eaves. It is policy that alterations and additions to existing dwellings should: § Be single storey in scale however, double storey scale may be permitted if it is setback behind the main ridgeline of the dwelling to minimise visibility from the street; § Be sited at the rear of the existing building; § Smooth rendered brick or masonry construction for walls visible from the street; § Promote roof forms and material visible from the street that is compatible with the heritage place; § Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; § Avoid windows in upper floor elevations facing the street; § Promote ground floor windows visible from the street that are timber framed with the same proportions as original windows.
22.01-9 NEWPORT AND SPOTSWOOD RESIDENTIAL HERITAGE PRECINCTS Proposed POLICY C99 Deleted: 06/01/2011¶ C68¶ This policy applies to all land and heritage places within the Spotswood Residential Heritage Precinct (HO30), Halls Farm Heritage Estate (HO11) Newport Estate Heritage Precinct (HO23), and Grindlay’s Estate Heritage Precinct (HO10) including places individually listed in the Schedule to the Heritage Overlay.
Policy basis
Speculators subdivided large areas of Newport and Spotswood in the late nineteenth century. In contrast to the haphazard small-scale subdivision that occurred in North Williamstown, the subdivisions in Newport and Spotswood were orderly grid subdivisions. However, like many other speculative subdivisions of the time, they were not developed until industrial expansion in the late nineteenth and early twentieth centuries transformed farmland in the area and created a demand for housing for its workforce. The historic pattern of development demonstrates the influence of the stations at Spotswood and Newport with earlier development generally located in close proximity to the stations. The streets include groups of late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as Hope, Robert and George Streets in Spotswood, to more predominantly Edwardian and Interwar enclaves in Newport. The houses share common elements of scale, siting, materials and roof forms, which create cohesive groups that are an important part of the historic character of this precinct. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
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Objectives
To retain the distinctive cultural heritage significance of these precincts, which is derived from: § The traditional grid street layout, Victorian-era dwellings, and other elements such as basalt kerb and channels and rear laneways that illustrate the nineteenth century origins of these precincts; § The strong associations of many early residents with the major industries in this area that were key influences in the historic development of Newport and Spotswood during the early twentieth century; § The architectural diversity, which comprises villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regularly shaped similar sized allotments) of residential buildings, which provide a unifying element throughout the precincts; § Regular shaped lots with frontages predominantly between 12-15 metres interspersed with some narrower lots, which creates a distinctive pattern of development.
Policy
It is policy to encourage infill development that has: § Respect for the single storey scale of the precinct. Double storeys may be appropriate if it is setback to minimise visibility from the street; § Detached siting parallel to the frontage; § Symmetrical or asymmetrically designed double fronted forms; § Contemporary interpretation of the wall materials found on heritage places in the same street for walls visible from the street; § Simple hipped corrugated iron roof form, except in streets with predominantly Edwardian or Interwar character where more complex hipped and gable roof forms are appropriate. Alternative roof materials may include slate in predominantly Victorian streets or terracotta in predominantly Edwardian or Interwar streets; § Rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped, windows when visible from the street; § Eaves and verandahs or porches in street elevations. It is policy that alterations and additions to existing dwellings should: § Be single storey scale when viewed from the street; § Be sited to the rear of the existing building; § Promote side setbacks that reflect the existing spacing between dwellings; § Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; § Promote roof forms and materials compatible with the heritage place; § Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; § Retain contributory features such as chimneys; § Avoid windows in upper floor elevations facing the street;
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§ Promote ground floor windows visible from the street that are rectangular, timber framed and vertically orientated if single, or in a horizontal bank if grouped.
22.01-10 NEWPORT CIVIC AND COMMERCIAL HERITAGE PRECINCT POLICY
Proposed C99 This policy applies to all land included within Newport Civic & Commercial Heritage Deleted: 06/01/2011¶ Precinct (HO22) and Melbourne Road Commercial Heritage Precinct (HO20) including places individually listed in the Schedule to the Heritage Overlay in the Melbourne Road Deleted: C68 Commercial Heritage Precinct (HO20). Formatted: Body Text
Policy basis
Newport shopping centre developed because of its proximity to the railway station, originally known variously as ‘Geelong Junction’, ‘Greenwich’ or ‘Newport Junction’. The 1880’s was an era of speculative development and grand Victorian buildings including the former Newport Hotel erected in 1887, the former Commercial Bank erected in 1888 and the two storey Italianate shop at 15-17 Mason Street, erected in 1891 illustrate the optimism for the future development of this area. The recession of the 1890’s meant that development temporarily ceased, until expansion of industries in the early part of the twentieth century led to increased residential development and consequently, expansion of this shopping centre. Most of the development of the centre therefore occurred within the Edwardian and Interwar period, which included the construction of the Edwardian brick station complex in 1912 to cater for the growing population. The Newport Civic and Commercial precinct today comprises a number of individually notable Victorian-era buildings interspersed amongst groups of Edwardian and Interwar-era shops, which share common siting, scale, and use of materials, which create cohesive groupings that contribute to the character and identity of this centre. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2014 relating to this precinct. Deleted: 2010
Objectives
To conserve and enhance the historic character and amenity of Newport that is an integral part of its identity and enhances its appeal as an important local retail centre. To retain the distinctive cultural heritage significance of this precinct which is derived from: § The strong associations between the historic development of this precinct and the development of the railway, and later, the expansion of major industries in the area during the early twentieth century; § The uniform Interwar era shops of single storey scale, attached siting with roofs concealed behind parapets in Melbourne Road (north of Mason Street); § The fine examples of predominantly Edwardian and Interwar commercial buildings of similar scale, face brick or rendered masonry construction, attached siting, and roofs concealed behind decorative parapets that give this centre its unique historic character and identity; § The rare surviving examples of early shopfronts and other detailing such as early or original signage; § The visual prominence and setting of historic landmark buildings such as the Former Masonic Temple, Newport Station complex, Newport Hotel, and the former Bank of Australasia. Significant vistas along Melbourne Road to the Masonic Temple and the Newport Hotel remain.
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Policy
It is policy to encourage infill development that has: § Respect for the double storey scale fronting Hall Street and Melbourne Road (south of North Road). Development above two storeys should be setback from the main facade to minimise visibility from Hall Street; § Respect for the single storey scale fronting Melbourne Road (north of Mason Street). Upper storeys should be setback to minimise visibility from Melbourne Road and protect the vista to the Masonic Temple; § Attached siting with zero frontage setbacks; § Face or rendered brick to the facade facing Hall Street or Melbourne Road, and a contemporary interpretation of traditional building materials and forms at the rear of properties; § Hipped roof forms concealed behind parapets, with hipped or skillion roofs at the rear; § Upper floor windows in facades facing Hall Street or Melbourne Road should be rectangular with vertical proportions if single or a horizontal bank, if grouped; § Upper floor facade articulation should incorporate contemporary interpretations of traditional building forms in the precinct such as projecting window bays, or recessed balconies; It is policy that alterations and additions to existing dwellings should: § Incorporate contemporary interpretations of building styles and forms found in the precinct in facades facing Hall Street or Melbourne Road; § Promote upper floor additions that are setback to minimise the visual impact upon Hall Street and Melbourne Road; § Avoid separations between buildings at the front; § Incorporate the traditional use of buildings as retail or commercial at the street frontage and residential above or behind. It is policy that: § Early examples of painted or other types of advertising signage are conserved.
22.01-11 INDUSTRIAL HERITAGE PLACES POLICY
Proposed C99 This policy applies to all land zoned Industrial 1, Industrial 3 or Special Use that is included Deleted: 06/01/2011¶ within the Heritage Overlay. C68¶
Policy basis
Since the mid-nineteenth century, a dominant theme in the development of Hobsons Bay has been the growth of industry. Some of Victoria’s most significant industrial heritage is now found within the city. Industries associated with meat and meat processing, engineering and fuels including coal, gas, electricity and petroleum have been dominant in Hobsons Bay over a long period of time. Many industries have been important not only locally, but also to the Victorian and national economy. Significantly, early industries such as the railway workshop and shipyard provided plentiful and steady employment for local residents. While many large industries have disappeared, industry in Altona, particularly at the petro-chemical complex, continues to employ a significant proportion of the labour force resident in the area. The Hobsons Bay Heritage Study Amended 2014 has identified a wealth of industrial Deleted: 2010 heritage in the area, including places such as the former Commonwealth Oil Refinery complex in Altona North, that are no longer used for their original purpose and have been
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redeveloped, to complexes such as the former Melbourne Glass Bottle works (now ACI) that continue processes commenced more than a century ago. The conservation of industrial heritage places presents specific management issues, as it is often the use of the site that is of primary historical significance. While fabric such as buildings or plant contributes to the significance of industrial heritage places by illustrating development over time, the on-going replacement and upgrading of this fabric is often an integral part of the operation of the use. ‘Conservation by use’ is an important heritage principle and on this basis, there may be circumstances where it may be appropriate to permit the removal or alteration of fabric if it will facilitate the historic use of a site and ensure its future viability. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended Deleted: 2010 2014 relating to this precinct.
Objectives
To ensure the continued viability of industrial heritage places for the uses and processes historically carried out on the site as an essential part of their significance and conservation. To increase awareness about the importance of industrial heritage in the municipality. To ensure that heritage issues are given appropriate consideration at an early stage when making decisions about the future use and development of industrial sites. To retain the distinctive cultural heritage significance of industrial heritage places which is derived from: § The traditional and on-going use of industrial heritage places over a long period; § The important influence of the industrial heritage places on the economic and social development of the city; § The sheer size and extent of nineteenth century industries in Newport and Spotswood, which demonstrates not only their local economic importance, but also their importance to the economy of Victoria; § The probable national significance of the Newport, Spotswood and North Altona region as one of the most historically important centres in relation to the development of the petroleum and petrochemical industries in Australia; § The surviving examples of early industrial building types, plant and equipment; § The associated infrastructure such as railways, pipe-lines, roads and wharves that are essential in understanding the complex historical interrelationships that occurred in the development of industries (particularly the petroleum and petrochemical industries) in the area.
Policy
Where a permit is required by the Heritage Overlay, it is policy that applications for development should have regard to: § The continued viability of the historic use of the site; § The balance between achievement of conservation objectives and economic viability, and occupational health and safety; § The conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment; § The retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it;
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§ Keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority. When a use is discontinued and a site is redeveloped, new development including subdivision should have regard to: § The retention of as much significant fabric as possible; § The creative interpretation of the history of the heritage place through the design or layout of new development including buildings, subdivision, landscaping, movement systems and public art; § The incorporation of a publicly visible historic marker, which provides the history of the site and may include text, images or maps to the satisfaction of the Responsible Authority.
Decision Guidelines
It is policy that before deciding on an application the Responsible Authority consider, as appropriate: § Whether the proposed buildings, works or demolition will support the viability of the historic industrial use carried out on the site; § Whether there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation; § Whether the proposed interpretation will provide adequate information about the historic use and development of the site.
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