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Ballarat Station Precinct Advisory Committee

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Ballarat Station Precinct Advisory Committee Planning and Environment Act 1987 Advisory Committee Report Ballarat Station Precinct Advisory Committee 3 May 2016 Planning and Environment Act 1987 Advisory Committee Report pursuant to Section 151 of the Act Ballarat Station Precinct Advisory Committee 3 May 2016 Rodger Eade, Chair Peter Allen, Member John Hartigan, Member Ann Keddie, Member Ballarat Station Precinct Advisory Committee Report 3 May 2016 Contents Page Executive Summary ............................................................................................................. 1 1 Introduction ................................................................................................................ 3 1.1 Background .............................................................................................................. 3 1.2 Advisory Committee process ................................................................................... 3 1.3 The proposal ............................................................................................................ 5 1.4 Submissions received .............................................................................................. 8 1.5 Issues dealt with in this report ................................................................................ 9 2 Planning context ....................................................................................................... 11 2.1 Policy framework ................................................................................................... 11 2.2 Planning scheme provisions .................................................................................. 14 2.3 Ministerial Directions and Practice Notes ............................................................. 15 2.4 Discussion .............................................................................................................. 15 3 Issues relevant to the Committee’s Terms of Reference ........................................... 16 3.1 Traffic movement and parking .............................................................................. 16 3.2 Heritage ................................................................................................................. 18 3.3 Urban Design, landscaping and the public realm .................................................. 20 3.4 Interface and amenity issues................................................................................. 21 3.5 Site contamination ................................................................................................ 21 3.6 Environmental issues............................................................................................. 23 3.7 Liquor licensing and gaming .................................................................................. 23 3.8 Advertising signage ............................................................................................... 24 4 Proposed planning controls ...................................................................................... 26 4.1 What matters should the Amendment address? .................................................. 26 4.2 How should these matters be addressed? ............................................................ 27 4.3 Other matters ........................................................................................................ 29 5 Form of the proposed Amendment ........................................................................... 30 5.1 The issue ................................................................................................................ 30 5.2 Committee deliberations ...................................................................................... 30 5.3 How should this amendment be introduced? ...................................................... 42 5.4 Conclusions ............................................................................................................ 42 5.5 Recommendations ................................................................................................ 43 6 Other issues .............................................................................................................. 44 6.1 Responsible authority for the project site ............................................................ 44 6.2 Consistent and transparent process ..................................................................... 44 6.3 Conclusions ............................................................................................................ 46 6.4 Recommendations ................................................................................................ 46 Ballarat Station Precinct Advisory Committee Report 3 May 2016 Appendix A Submitters to the Amendment Appendix B Document list Appendix C Advisory Committee Terms of Reference Appendix D Revised draft Schedule 16 to the Special Use Zone proposed by Regional Development Victoria List of Tables Page Table 1 Parties to the Committee Hearing .......................................................................... 4 Table 2 Matters which the Amendment should address ................................................... 26 List of Figures Page Figure 1 Ballarat Station Precinct .......................................................................................... 5 Figure 2 Ballarat Station Project Site ..................................................................................... 6 Ballarat Station Precinct Advisory Committee Report 3 May 2016 List of Abbreviations DEDJTR Department of Economic Development, Jobs, Planning and Resources DPO Development Plan Overlay EPA Environment Protection Authority IPO Incorporated Plan Overlay PUZ Public Use Zone RDV Regional Development Victoria SPPF State Planning Policy Framework SUZ Special Use Zone VHR Victorian Heritage Register VRI Victorian Railways Institute Ballarat Station Precinct Advisory Committee Report 3 May 2016 Executive Summary (i) Summary The Ballarat Station Precinct Advisory Committee’s Terms of Reference state that its purpose is: …to provide advice on the appropriate form and process of a proposed amendment to the Ballarat Planning Scheme to facilitate redevelopment of the Ballarat Railway Station Precinct. To facilitate such redevelopment, a proposed planning scheme amendment was advertised. It provided three options for a planning scheme amendment to facilitate the adaptive reuse of the former Goods Shed and the development by the private sector of a hotel and conversion/exhibition centre. It is proposed that the land for the private sector development will be excised and sold to the preferred developer. The proposal in part implements the Ballarat Station Precinct Master Plan, 2014. The Victorian Government has contributed $25 million towards the project. The planning options proposed can be summarised as: Option 1 – Include the land in the Special Use Zone with embedded requirements for approval of a development plan. Option 1A ‐ Include the land in the Special Use Zone with requirements for the approval of a development plan included in a Development Plan Overlay. Option 2 – Include the land in the Commercial 1 Zone with requirements for the approval of a development plan included in a Development Plan Overlay. Forty seven submissions were received in response to the notification of the Committee’s Terms of Reference and proposed Amendment C198 to the Ballarat Planning Scheme. Issues raised in those submissions which were relevant to the Committee’s Terms of Reference include traffic and parking both in the precinct and in surrounding streets, heritage, urban design and landscape, soil contamination and other environmental issues, interface and residential amenity in the adjacent area, signage, and liquor licensing and gaming. These issues are considered in this report. In addition there were a number of issues raised which the Committee regarded as beyond its Terms of Reference. In a number of cases these were raised as a result of community concerns about the proposed development. The Committee has considered the issues and their relevance to the future planning provisions to facilitate the redevelopment of part of the site. The emphasis in this report is on those planning provisions. The Committee notes that there is a broadly parallel process to identify a private sector developer for the proposed hotel and convention centre development. The Committee considers that none of the three planning options proposed are the best approach to facilitating the proposed project. It proposes an approach which is summarised in its conclusions in this report and its recommendations which are set out below. Page 1 of 63 Ballarat Station Precinct Advisory Committee Report 3 May 2016 (ii) Recommendations Based on the reasons set out in this Report, the Committee recommends that the Minister for Planning: 1. Prepare and approve an amendment to the Ballarat Planning Scheme subject to: a) Including the Private Development Area in the Special Use Zone. The provisions of the zone should be as described in section 5.2.3. of this report b) Including the Project Site in an Incorporated Plan Overlay. The provisions of the overlay and associated incorporated document (the Concept Plan) should be as described in section 5.2.4 of this report c) Including the proposed Special Use Zone include a requirement for a development plan and matters that are consistent with that plan, be exempt from notice and review. The development plan must
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