Surf Coast Distinctive Area and Landscape Draft Surf Coast Statement of Planning Policy: Settlement Background Paper

November 2020 Photo credit

Russel Charters

Acknowledgment We acknowledge and respect the Traditional Owners of the Wadawurrung land and waters, their unique ability to care for Country and deep spiritual connection to it. We honour Elders past and present whose knowledge and wisdom has ensured the continuation of culture and traditional practices. We are committed to genuinely partner and meaningfully engage with Traditional Owners to support the protection of their Country, the maintenance of spiritual and cultural practices and their broader aspirations in the 21st century and beyond.

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PROPOSED SETTLEMENT BOUNDARIES 36 Contents Torquay–Jan Juc 36 Spring Creek Future Residential Area 38 Messmate Road Future Residential Area 47 Torquay North East Future Residential EXECUTIVE SUMMARY 4 Investigation Area 51 Bellbrae and Breamlea 54 Part B proposals and Bellbrae 54 proposed implementation actions 6 Breamlea 56 Part C proposals and Residential areas outside proposed implementation actions 8 existing settlement boundaries 58 Mount Duneed and Connewarre 58 INTRODUCTION 10 Addiscott Road Estate 60 Armstrong Creek Urban Growth Area 63 Declaration of Surf Coast 10 Have your say 12 MANAGING URBAN-RURAL INTERFACES, Purpose and structure of this paper 13 TRANSITION AREAS AND RIDGELINES 64

POLICY CONTEXT 14 Managing urban-rural interfaces 64 Transition areas 65 Legislative objectives 14 Hilltops and ridgelines 65 State and regional policy context 15 Planning scheme policies 15 MANAGING BUILT FORM WITHIN State and regional policies 15 TORQUAY–JAN JUC 66 Surf Coast local policies 16 Coastal character 67 Other Surf Coast local plans and strategies 18 Activity centres 69 Greater Geelong local policies 20 Torquay Town Centre 70 Other Greater Geelong local plans Bell Street Neighbourhood Activity Centre 72 and strategies 21 Surf City and Surf Coast Gateway precincts 72 Planning practice notes 21 Jan Juc Activity Centre 73 Torquay North Neighbourhood Activity Centre PUBLIC ENGAGEMENT OUTCOMES 22 and Torquay Community and Civic Precinct 73 Existing residential areas 74 Current Torquay–Jan Juc urban POPULATION GROWTH, VISITOR consolidation area 75 GROWTH AND LAND SUPPLY 23 Substantial change areas 77 Population growth and housing demand 23 Incremental change areas 80 Land supply 24 Minimal change areas 85 Residential land supply 24 Industrial land supply 26 REFERENCES 88 Visitor growth 26 ABBREVIATIONS 90 SETTLEMENT BOUNDARIES AND GREEN BREAKS 29 GLOSSARY 90 What is a settlement boundary? 29 What is a green break? 30 How will the settlement boundaries operate? 30 APPENDIX 1: TORQUAY–JAN How are settlement boundaries and JUC HOUSING SUPPLY ESTIMATES 93 protected settlement boundaries amended? 30 APPENDIX 2: SPRING CREEK FUTURE METHODOLOGY 31 RESIDENTIAL AREA STRATEGIC Assessment criteria 31 PLANNING HISTORY TIMELINE 98 Planning principles 31 Land development constraints and opportunities 32 APPENDIX 3: Feasible boundary location 32 MANAGING BUSHFIRE RISK 101 Assessment criteria for greenfield areas 32

Surf Coast Settlement Background Paper 3 Department of Environment, Land, Water and Planning

Part A: Context for settlement planning Executive Summary in the Surf Coast declared area In September 2019, an area comprising part of the Surf Coast Shire and the City of Greater Geelong To determine how settlements should be were declared a distinctive area and landscape planned, it is important to understand the under Part 3AAB of the Planning and Environment legislative and planning policy context. Act 1987 (the Act). The proposed approach to settlement planning in The Surf Coast declared area is a place of state and the declared area is governed by Part 3AAB – national importance, being a major tourist Distinctive Areas and Landscapes of the Act. This destination located along the Great Ocean Road legislation is the primary consideration when with significant environmental, geographical and determining the appropriate approach to cultural heritage features and productive areas. Due implementing settlement boundaries and to the desirability of the declared area as a preferred approaches to managing built form and infill place to live, work, visit and play, these attributes are outcomes. The legislation focusses on the protection under threat from a range of pressures associated and conservation of the distinctive attributes of the with overuse and development. declared area.

Declaring an area triggers the requirement to Plan Melbourne 2017-2050 and G21 Regional Growth prepare a Statement of Planning Policy (SPP), which Plan provide strategic direction for settlement must include a framework plan, a 50-year vision and planning in the Surf Coast declared area. These strategies and objectives to achieve the vision. strategies broadly support the provision of further Importantly, a SPP can include protected settlement housing and employment-related developments in boundaries to help provide assurance to the Torquay–Jan Juc, subject to detailed planning being community about the direction of future growth in completed to ensure the area’s unique values are their settlements. protected.

To protect the Surf Coast declared area’s attributes, Sustainable Futures Plan Torquay – Jan Juc 2040 is the Minister for Planning has committed to setting Surf Coast Shire’s strategy for managing urban settlement boundaries and height controls through growth. It has set the direction for future growth in the Surf Coast distinctive area and landscape Torquay–Jan Juc, and it supports infill development project. around activity centres and greenfield development in specific areas. The strategy provides the starting This paper provides the methodology used to assess point for considering settlement boundaries in light settlement boundaries, proposals about locations of the Surf Coast’s designation as a distinctive area for settlement boundaries in the declared area and and landscape. proposals about built form outcomes and locations for infill development in Torquay – Jan Juc. Public feedback is also essential when planning for settlements, and this work has been informed by two This provides the evidence basis for the settlement phases of public engagement. When the public was policy domain of the Draft Surf Coast Statement of asked about the future of settlements in the Planning Policy (draft Surf Coast SPP), and it will help declared area, they expressed a range of views: inform the written submissions that are being invited some wanted to limit the growth of settlements, and from the community, responsible public entities, others saw a need to allow for sustainable growth. industry representatives and other interested parties about the contents of the draft Surf Coast SPP. Some of the key findings from the two phases of public engagement were:

• overdevelopment is seen as the main threat to the declared area’s settlements

• concerns over overdevelopment included the loss of neighbourhood character of existing settlements, buildings not respecting the landscape or environmental values of the area, the loss of older-style homes to new development, poor-quality designs and impacts to services and infrastructure

4 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

• it is important to maintain the relationships of settlements with their surrounding natural environments, both coastal and bushland

• settlement boundaries are an important factor when considering protection of the declared area, particularly around Torquay–Jan Juc, but views were divided over the development of Spring Creek Future Residential Area

• settlement boundaries and limitations on development were also raised as important tools in relation to other policy domains within the draft Surf Coast SPP, notably the Environmental risks and resilience, Landscape and Environment and biodiversity domains.

Settlement planning in the declared area has also been informed by housing supply and demand projections. There is a high rate of sustained demand for new housing in the declared area, with Torquay–Jan Juc experiencing strong growth for several years.

In 2018, the population of Torquay–Jan Juc was 20,940 people, which represents about 64% of the total population of Surf Coast Shire. The projected population of Torquay–Jan Juc in 2036 is 32,500 people. This is an additional 11,560 people: 5,240 new households. It is also projected that about 6,190 dwellings will be needed to meet this demand, considering current planning policies (DELWP 2019d).

Part B: Defining settlement boundaries

The methodology used to assess and propose settlement boundary locations is set out in Part B. Assessment criteria were developed for the consideration of greenfield areas on the periphery of settlements, where there is a greater risk of impacts on the declared area’s distinctive attributes. These criteria were developed considering the objects of the Act, broad planning principles, land development constraints and opportunities as well as feasible boundary locations. This was also balanced against the public engagement results, housing supply and demand data, and the existing planning context.

The criteria that were developed are:

• environmental significance

• landscape significance

• Aboriginal cultural heritage significance

• historic heritage and township character significance

• natural resources and productive land significance

• strategic infrastructure and built form significance

• environmental risks.

Surf Coast Settlement Background Paper 5 Department of Environment, Land, Water and Planning

Overall, a protected settlement boundary is Part B proposals and proposed proposed for Torquay – Jan Juc. implementation actions

The three greenfield areas in Torquay–Jan Juc that The proposals and the proposed implementation were assessed against the above criteria for actions contained in Part B of this paper are indexed inclusion within the protected settlement boundary below for quick reference. are: Proposals • Spring Creek Future Residential Area – it is proposed that two options could protect the Proposal 1: that two options for the Spring Creek distinctive attributes found in the Spring Creek Future Residential Area be presented for public Future Residential Area – firstly, low density consultation: ecologically sustainable development with the current settlement boundary retained, or secondly, • Option 1: Low density ecologically sustainable the Spring Creek Future Residential Area to development (with the current settlement become part of the green break between boundary retained), which Map 19 shows Torquay–Jan Juc and Bellbrae with a protected settlement boundary applied at Duffields Road. • Option 2: Green break area (excluded from the settlement boundary), which Map 20 shows • Messmate Road Future Residential Area – it is proposed that this land is suitable for urban Proposal 2: that the Messmate Road Future development, subject to conditions relating to Residential Area be included within a protected landscape and environmental values in particular. settlement boundary for Torquay–Jan Juc, with provisos • Torquay North East Future Residential Investigation Area – it is proposed that this are be Proposal 3: that the Torquay North East Future retained as a future investigation area. Further Residential Investigation Area be identified as a technical work is required to determine whether future residential investigation area outside of a stormwater overflows can be managed so that protected settlement boundary for Torquay–Jan there are no impacts on Breamlea Flora and Juc. Fauna Reserve or surrounding developments. Proposal 4: That a protected settlement boundary Bellbrae, Breamlea, Mount Duneed, Connewarre, be applied to Bellbrae that aligns with the existing Addiscott Road Estate and Armstrong Creek Urban settlement boundary. Growth Area were assessed to determine if a protected settlement boundary or settlement Proposal 5: That a protected settlement boundary boundary should be proposed, and if so, its be applied to Breamlea that aligns with the existing appropriate location. Consequently: settlement boundary.

• Protected settlement boundaries are proposed for Proposal 6: That settlement boundaries that align Bellbrae and Breamlea with the current Low Density Residential Zone be applied to Mount Duneed and Connewarre. • Settlement boundaries are proposed for Mount Duneed and Connewarre. Proposal 7: The Addiscott Road Estate area be managed as a green break area, with no new Addiscott Road Estate is proposed to be managed residential development or subdivision. as part of the green break between settlements Map A shows proposed settlement boundaries and A protected settlement boundary is proposed to be protected settlement boundaries explained in this implemented for the Armstrong Creek Urban Growth part. Area following the completion of local strategic planning work, to better protect the green break between Geelong and Torquay–Jan Juc.

The most appropriate location for this boundary is subject to the completion of a logical inclusion process, which will be led by the Greater Geelong City Council in collaboration with DELWP, relevant agencies and the Wadawurrung. The Surf Coast SPP will be amended once this work is completed.

6 Surf Coast Settlement Background Paper Map A: Proposed settlement and protected settlement boundaries Department of Environment, Land, Water and Planning

Lower Duneed Rd Mount Duneed

Connewarre

ea R Breamlea les

Ang H

t s

o Hend c y M f ain Rd r

Torquay - Jan Juc Bellbrae

Bell

Rd an Oce at Gre

Proposed settlement and protected settlement boundaries

Surf Coast Declared Area District town Parks and Reserves

Protected Settlement Boundary Village Water body

Options proposed for consultation Hamlet/Locality River Disclaimer: The State of Victoria does not warrant the Further investigation required Highway accuracy or completeness of informationin this publication and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no Settlement Boundary Main Road responsibility or liability whatsoeverfor any errors, faults, Surf Coast Settlement Background Paperdefects or omissions7 in the information. Protected settlement boundary to be implemented subject to local Local Road © The State of Victoria Department of Environment, strategic planning work Land, Water and Planning 2020 Department of Environment, Land, Water and Planning

Proposed implementation actions Proposals

Action 1: That after approval of the Surf Coast SPP, Proposal 8: That generous urban-rural transition the existing planning provisions in Bellbrae relating areas be required within the protected settlement to neighbourhood character objectives, landscaping, boundaries for future greenfield development areas minimum street setback, building heights, building within the declared area and where there is an site coverage and permeability requirements be intensification of existing low-density residential reviewed. areas on the edges of settlements.

Action 2: That after approval of the Surf Coast SPP, Proposal 9: That new development in greenfield the existing planning provisions in Breamlea relating areas and in areas where there is an intensification to neighbourhood character objectives, landscaping, of existing low-density residential areas on the building heights, building site coverage and settlement’s edges sits below hilltops and ridgelines, permeability requirements be reviewed. with skyline views dominated by natural topographic formations and canopy trees. Action 3: That the land zoned Low Density Residential Zone within the Addiscott Road Estate Proposal 10: That that the coastal character area be rezoned to an appropriate rural zone, with statement for Torquay–Jan Juc be included in the no further residential growth or subdivision. Surf Coast SPP.

Action 4: That a protected settlement boundary be Proposal 11: That a core residential consolidation established for the Armstrong Creek Urban Growth area be provided for the area surrounding the Area and brought into the Surf Coast SPP. Torquay Town Centre (generally fronting Zeally Bay Road, Anderson Street, the Surf Coast Highway and The Esplanade), and that it be identified as a Part C: Managing settlement areas substantial change area. Torquay–Jan Juc is experiencing infill development Proposal 12: That residential properties fronting the pressure. If incorrectly planned, infill development Surf Coast Highway between Darian Road and Bell has the potential to negatively impact the valued Street be identified as a substantial change area. coastal character of the settlement and its relationship with the surrounding state-significant Proposal 13: That The Esplanade be identified as an landscape. This paper sets out proposals for the incremental change area. draft Surf Coast SPP and implementation actions to better manage built form outcomes and infill Proposal 14: That the balance of Torquay’s development in Torquay – Jan Juc. residential areas be identified as incremental change area. To ensure the valued attributes of the Surf Coast declared area are preserved, the interface of Proposal 15: That The Sands be identified as an residential areas with surrounding rural land needs incremental change area. to be better managed. Urban-rural transition areas with lower-density residential development and Proposal 16: That: additional permeability and landscaping are needed • the Jan Juc Urban Consolidation Area be on the edges of Torquay–Jan Juc. New development identified as an incremental change area on the settlement’s edges should sit below hilltops and ridgelines to ensure skyline views are dominated • the extent of the area be redefined as properties by natural topographic formations and canopy trees. fronting both sides of Regent Street to the north- east, Sunset Strip to the north-west, Domain Road Infill development should be focused around activity to the west, and Regal Road and Empire Avenue centres, in the core of Torquay and along the Surf Coast Highway. This means most of Torquay–Jan Proposal 17: That the balance of the Jan Juc Juc’s residential areas can be designated for residential area be identified as an incremental incremental or minimal change. All new development change area. in the settlement should respond to its valued coastal character and support the strong Proposal 18: That the Strathmore Drive area be relationship between the settlement and its identified as a minimal change area. landscape setting. Proposal 19: That the remaining low-density Part C proposals and proposed residential areas be identified as minimal change implementation actions areas.

The proposals and the proposed implementation actions contained in Part C of this paper are indexed below for quick reference.

8 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Proposed implementation actions character.

Action 5: That once the Surf Coast SPP is approved, Action 15: That once the Surf Coast SPP is approved, existing planning provisions be updated to include existing planning provisions applying to The vegetation, landscaping, permeability and open Esplanade be amended to provide: space requirements to give effect to the SPP. • a mandatory maximum building height of two Action 6: Once the Surf Coast SPP is approved, storeys or 9 m current height controls be amended to allow up to four storeys in appropriate locations in the town • a preferred maximum building height of two centre: new development must not dominate the storeys and 7.5 m coastal reserve and must ensure the foreshore area • consistent private open space requirements is protected. • reduced building site coverage Action 7: That once the Surf Coast SPP is approved, a mandatory maximum building height of three • new landscaping provisions to increase storeys be applied to the Bell Street Neighbourhood permeability and maintain the area’s landscape Activity Centre. character.

Action 8: That to ensure new development is in Action 16: That once the Surf Coast SPP is approved, keeping with the vision for the precincts, the existing existing planning provisions applying to the balance planning controls for the Surf City and Surf Coast of Torquay’s residential areas be amended to Gateway precincts be retained. provide:

Action 9: That opportunities for larger-scale tourism • a mandatory maximum building height of two infrastructure within the Surf Coast Gateway storeys or 9 m Precinct be investigated. • a preferred maximum building height of two Action 10: That once the Surf Coast SPP is approved, storeys and 7.5 m a mandatory maximum two-storey building height, consistent with the surrounding residential area, be • consistent private open space requirements applied to the Jan Juc Activity Centre. • reduced building site coverage Action 11: That the existing planning controls be retained for the Torquay North Neighbourhood • new landscaping provisions to increase Activity Centre and Torquay Community and Civic permeability and maintain the area’s landscape Precinct. character.

Action 12: That opportunities be investigated for Action 17: That once the Surf Coast SPP is approved, community facilities to be co-located with a future existing planning provisions applying to the Jan Juc Armstrong Creek to Torquay Transit Corridor Urban Consolidation Area be amended to provide: terminal.

Action 13: That once the Surf Coast SPP is approved, • a mandatory maximum building height of two existing planning provisions applying to Central storeys and 9 m Torquay be amended to provide: • a preferred maximum building height of two • a mandatory maximum building height of three storeys and 7.5 m storeys and 11 m • amended building site coverage requirements • reduced building site coverage • amended landscaping and permeability • new landscaping provisions to increase requirements permeability and maintain the area’s landscape Action 18: That once the Surf Coast SPP is approved, character. the existing planning provisions applying to the Action 14: That once the Surf Coast SPP is approved, balance of the Jan Juc residential area be amended existing planning provisions applying to the Surf to provide: Coast Highway residential area be amended to • a mandatory maximum building height of two provide: storeys and 9 m • a mandatory maximum building height of three • a preferred maximum building height of two storeys or 11 m storeys and 7.5 m • reduced building site coverage • amended building site coverage requirements • new landscaping provisions to increase • amended landscaping and permeability permeability and maintain the area’s landscape requirements.

Surf Coast Settlement Background Paper 9 Department of Environment, Land, Water and Planning

Introduction

The draft Surf Coast SPP sets out the Declaration of Surf Coast Victorian Government’s framework for the A part of the Surf Coast region has been declared a future use and development of land in the distinctive area and landscape under Part 3AAB of Surf Coast declared area to ensure the the Act, to protect and conserve the distinctive protection and conservation of its unique environmental, cultural, socio-economic and other values and distinctive attributes. It will guide attributes of the area. The area includes land around Torquay–Jan Juc. It extends along the coastline decision-making about long-term from the eastern edge of the Great Otway National settlement planning and management in Park to Breamlea Flora and Fauna Reserve. It also the Surf Coast declared area. covers the nearby hinterland area to include the landscape setting of Torquay–Jan Juc and Bellbrae This background paper provides contextual and is within Surf Coast Shire and City of Greater information and technical work that informs the Geelong municipalities. Map 1 shows the Surf Coast settlement policy domain set out in the draft Surf declared area. Coast SPP. The government has determined that the Surf Coast declared area meets section 46AP of the Act, that requires an area to have a majority of the specified attributes (including environmental, landscape and cultural heritage significance) and to be under threat from significant or irreversible land use change. For further information, see Distinctive Areas and Landscapes: Assessment of Surf Coast against the declaration requirements of the Planning and Environment Act 1987.

The Surf Coast declared area includes landscapes of national, state and regional significance. It is a major tourist destination located on the nationally heritage-listed Great Ocean Road with significant environmental, geographical and cultural heritage features and productive areas. Due to the desirability of the Surf Coast declared area as a place to live, work, visit and play, these attributes are under threat from a range of pressures associated with overuse and development.

There is pressure to accommodate more infill development and to expand settlements into rural areas to increase the supply of housing, tourist accommodation and associated infrastructure. If not carefully planned and managed, urbanisation could harm the unique character and features of the area and increase the effects of climate change. Vegetation removal, loss of habitats, impacts from stormwater run-off and the visual impacts of urban development on the landscape are key threats resulting from urban encroachment. Balancing urban growth and protection of the distinctive attributes will allow the declared area to be enjoyed by current and future generations.

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Map 1: Surf Coast declared area

GEELO NG R I NG ROAD Reservoir Rd Whites Rd

Barwon Heads Rd C I T Y O F GREATER GEELONG Bogans Lane Mt Duneed Rd Lower Duneed Rd

Barwon Heads Rd Dickins Rd

OMP TH SO R N C EE K

Surf Coast Hwy

Blackgate Rd Breamlea Rd SURF COAST SHIRE Karaaf Woodland Rd Wetlands

Anglesea Rd

Hendy Main Rd

Vickerys Rd

Brushfields Rd

D E E P Nortons Rd CRE E K

600m seaward of low water mark R EK RING C E P S

Point Danger Marine Sanctuary

Gundrys Rd

Forest Rd

Bells Beach BellsRd Beach

Great Ocean Rd

Great Otway Hurst Rd National Park

600m seaward of low water mark

Point Addis Marine National Park °

0 2 4

Kilometres

Melbourne ! Surf Coast Declared Area Parks and Reserves Freeway Watercourse Local Government Coastal Reserve Highway Water body Geelong ! Boundaries Marine National Park Arterial

Source: Draft Surf Coast Statement of Planning Policy

Surf Coast Settlement Background Paper 11 Department of Environment, Land, Water and Planning

Once an area is declared, the Act triggers the Have your say requirement to prepare a SPP to guide the future use and development of land in the declared area, DELWP invites written submissions from the general making sure the distinctive attributes of the declared public, community groups, responsible public area are protected. entities, industry representatives and other interested parties about the Draft Surf Coast A SPP also coordinates decision-making for land use Statement of Planning Policy and the Draft Surf and development, achieving integrated Coast Statement of Planning Policy: Proposed management, infrastructure and development Landscape Planning Controls. outcomes. A SPP contains: These documents can be found at www.engage.vic. • a vision of at least 50 years, which identifies the gov.au/distinctive-areas-and-landscapes-program/ values and attributes that the community wants to surf-coast. protect The submission process is independently managed • policy objectives and strategies to achieve the by Planning Panels Victoria. vision A submission must state the name and address of • a declared area framework plan, to guide decision- the person making it, and it will be treated as a making in relation to the future use and public document. Proforma submissions and development of land: the plan may specify petitions will only be counted as one submission, and settlement boundaries in the declared area or any contact will be made through the first-named designate specific settlement boundaries in the person. declared area as protected settlement boundaries. Submissions must be lodged through the Engage To protect the Surf Coast declared area’s attributes, Victoria platform at www.engage.vic.gov.au/dalsac the Minister for Planning has committed to setting before 4.00 pm Friday 22 January 2021. permanent height controls and town boundaries to protect the environment, landscape and local Where a submitter is unable to lodge a submission lifestyle. online, they must contact Planning Panels Victoria through the DELWP Customer Service Centre on 136 The draft Surf Coast SPP has been prepared by the 186 (select option 6) and request a hardcopy Department of Environment, Land, Water and submission coversheet. Each hardcopy submission Planning (DELWP) in collaboration with the must be accompanied by a coversheet issued by Wadawurrung Traditional Owners, the Surf Coast Planning Panels Victoria. Shire Council and the Greater Geelong City Council and relevant government agencies. Submissions will be treated as public documents and will be published on the Victorian Government’s engagement website. Do not include any personal information in the body of your submission (such as your email address or phone number). Your submission and your name will be made public.

12 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Advisory Committee Purpose and structure of this paper The Minister for Planning has appointed the Distinctive Area and Landscapes Standing Advisory This paper provides the evidence base for Committee, which will consider all submissions, hold the settlement policy section of the draft public hearings (at which submitters can present) Surf Coast SPP, to inform public and provide an independent report to the Minister submissions. for Planning. The paper has three parts: The Advisory Committee will hold a Directions Hearing on Thursday 11 February 2021. Its Public • Part A: Context for settlement planning in the Hearings will commence from Monday 15 March 2021 Surf Coast declared area, which sets the scene for and are likely to go for several weeks. If you would like the development of the settlement policy domain to appear before the Advisory Committee, you must in the draft Surf Coast SPP. It provides the make a written submission and complete the legislative and planning policy context relating to relevant sections on the online form. Hearings are settlements in the declared area, feedback from likely to be held in both Torquay and Melbourne if public engagement activities and current trends in convened in person, or by videoconference if population and visitor growth COVID-19 restrictions remain. • Part B: Defining settlement boundaries, which Upon receipt of the Advisory Committee’s report, the explains the methodology used to determine the Minister for Planning will consider the findings and a proposed location of settlement boundaries in the final draft Surf Coast SPP will be prepared and declared area provided to responsible public entities and Ministers responsible for those entities for endorsement. The • Part C: Managing settlement areas, which sets out Minister for Planning will then seek the Governor in the principles for managing built form outcomes at Council’s approval for the final draft Surf Coast SPP. the interface of urban and rural areas. It also provides suggestions for how to better manage Once approved, the Surf Coast SPP will form part of infill and built form within Torquay–Jan Juc. the standard provisions of the Victoria Planning This paper should be read in conjunction with the Provisions, with immediate effect. Planning scheme draft Surf Coast SPP. The following documents amendments will also be progressed to implement it provide additional background information: into the Surf Coast and Greater Geelong planning schemes, to provide a consistent approach to land • Distinctive Areas and Landscapes: Surf Coast use planning and development across the declared Landscape Assessment Review Volumes 1 and 2 area. (Claire Scott Planning, 2020)

• Opportunities and Constraints Assessment: Torquay North East Future Residential Investigation Area (Ecology and Heritage Partners, 2020)

• Surf Coast Distinctive Area and Landscape: Phase One Engagement Report (Capire, 2019)

• Surf Coast Distinctive Area and Landscape: Phase Two Engagement Report (Capire, 2020)

• Surf Coast Distinctive Area and Landscape: Township Character Assessment (Ethos Urban, 2020)

• Wadawurrung Cultural Heritage Summary (Wathaurung Aboriginal Corporation, 2020).

These background documents are available on the Surf Coast Distinctive Areas and Landscapes Project web page.

Surf Coast Settlement Background Paper 13 Department of Environment, Land, Water and Planning

Part A: Context for settlement planning in the Surf Coast declared area

Policy context

Planning for settlements within the Surf Coast declared area is guided by legislative requirements as well as local, regional and state policies as set out in the Greater Geelong Planning Scheme, the Surf Coast Planning Scheme and other supporting strategic documents.

Legislative objectives

The proposed approach to settlement planning outlined in the draft Surf Coast SPP is governed by Part 3AAB – Distinctive Areas and Landscapes of the Act. This legislation is the primary consideration when determining an approach to implementing settlement boundaries in the declared area.

The objects of Part 3AAB of the Act, stated under section 46AN, are:

• to recognise the importance of distinctive areas and landscapes to the people of Victoria and to protect and conserve the unique features and special characteristics of those areas and landscapes;

• to enhance the conservation of the environment in declared areas including the unique habitats, ecosystems and biodiversity of declared areas;

• to enable the integration of policy development, implementation and decision making for declared areas under Statements of Planning Policy; and

• to recognise the connection and stewardship of Traditional Owners in relation to land in declared areas.

Under section 46AU of the Act, ‘the purpose of a Statement of Planning Policy for a declared area is to create a framework for the future use and development of land in the declared area to ensure the protection and conservation of the distinctive attributes of the declared area’.

Under section 46AP of the Act, the Minister for Planning must be satisfied that an area has a majority of the following attributes in order to recommend that the area be declared as a distinctive area and landscape:

• outstanding environmental significance

• significant geographical features including natural landforms

• heritage and cultural significance

• natural resources or productive land of significance

• strategic infrastructure or built form of significance

• any other prescribed attribute.

Section 46AP of the Act also requires the Minister for Planning to be satisfied that the attributes are under threat from significant or irreversible land use change that would affect the environmental, social or economic value of the area.

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State and regional policy context Planning scheme policies

Planning for settlements within the Surf The following planning scheme policies are Coast declared area is guided by the relevant to determining settlement planning following strategies. in the declared area.

The 2013 G21 Regional Growth Plan and Melbourne’s State and regional policies metropolitan planning strategy, Plan Melbourne 2017-2050 provide the strategic direction for The following state and regional planning scheme settlement planning for Torquay–Jan Juc. These policies are relevant to determining settlement strategies highlight Torquay–Jan Juc as an planning in the declared area. important regional service centre as well as a visitor destination because of its location at the start of the • Clause 11.01-1S Settlement: the clause seeks to nationally heritage-listed Great Ocean Road. ensure growth is planned in a sustainable way and identifies settlements of state and regional The G21 Regional Growth Plan identifies Torquay– significance. It requires settlement growth to be Jan Juc as a district town and encourages growth planned in accordance with regional growth plans consistent with existing structure plans or growth including the G21 Regional Growth Plan. plans, including incremental infill. This designation was based on the inclusion of growth areas • Clause 11.01-1R Settlement – Geelong G21: the designated in the Sustainable Futures Plan Torquay– clause supports the growth of Torquay–Jan Juc as Jan Juc 2040. It also supports Torquay–Jan Juc a district town that provides s ervices for the continuing to provide further housing and surrounding area. It seeks to provide settlement employment-related development to support the breaks between towns to maintain unique growth of the region and the tourism industry. identities and implement settlement boundaries for all towns. Plan Melbourne Policy 7.1.2 identifies Torquay–Jan Juc as a peri-urban town with capacity for further • Clause 11.02 Managing growth: the clause requires housing and employment-related development, local governments to plan for 15 years of land without detriment to the economic and supply across the local government area and to environmental roles of the surrounding, non-urban provide clear direction about locations where areas. growth should occur. Planning should facilitate development that is in a defined sequence and The 2020 Marine and Coastal Policy applies to the through a hierarchy of structure plans. planning and management of matters relating to settlements affecting Victoria’s marine and coastal • Clause 11.03-1S Activity centres: the clause environment. It sets a vision of a healthy, dynamic encourages the concentration of major retail, and biodiverse marine and coastal environment. For residential, commercial, administrative, coastal settlements, this policy supports the entertainment and cultural developments into identification of settlement boundaries to plan for activity centres that are highly accessible to the growth and protect coastal values. community.

The 2017 Protecting Victoria’s Environment – • Clause 11.03-3S Peri-urban areas: the clause Biodiversity 2037 aims to protect and improve directs development that is sensitive to the Victoria’s natural environment by achieving a net ecological, landscape, recreational and gain in the overall extent of natural habitats in agricultural values of peri-urban areas including terrestrial and marine environments. It recognises Torquay–Jan Juc. It also encourages the the importance of the natural environment to our establishment of settlement boundaries and green way of life and their high resource value. breaks.

The 2018 Great Ocean Road Action Plan (DELWP, • Clause 11.03-4S Coastal settlement: the clause 2018) identifies the steps needed to safeguard the encourages urban renewal in existing settlements future of the coastal land and waters of the Great to limit urban sprawl. It also seeks to implement Ocean Road and to support a sustainable tourism settlement boundaries and support suitable economy for the region. This includes an action to growth around environmental assets. It provide legislative recognition of the nationally discourages development along ridgelines and on heritage-listed Great Ocean Road. low lying coastal areas.

• Clause 11.03-5R The Great Ocean Road region: the clause protects public lands and significant

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landscapes in the Great Ocean Road region several ways including by directing urban growth to strategically identified areas.

• Clause 16.01-2S Location of residential development: the clause supports increasing the proportion of new housing in designated locations in established urban areas to reduce the share of new dwellings in greenfield and dispersed development areas.

• Clause 16.01-2R Location of residential development – Geelong G21: the clause encourages urban consolidation by infill development around activity areas in district towns.

Surf Coast local policies

The following local planning scheme policies are relevant to settlement planning within the Surf Coast Shire local government area.

• Clause 21.02 Settlement, built environment, heritage and housing: the clause designates Torquay–Jan Juc and Winchelsea as major urban growth centres, and it seeks to maintain clear, green breaks between settlements, particularly Geelong and Torquay–Jan Juc and coastal settlements.

• Clause 21.04 Tourism: the clause provides a range of strategies for tourism developments including locating high-profile, high-volume tourism developments in appropriate urban areas where their impacts and infrastructure requirements can best be accommodated.

• Clause 21.07 Rural residential living: the clause recognises rural living is not the most sustainable or efficient use of land, and it seeks to limit rural living to identified areas around Torquay–Jan Juc.

• Clause 21.08 Torquay–Jan Juc strategy: the clause incorporates the values and objectives of Sustainable Futures Plan Torquay–Jan Juc 2040, and it recognises Torquay–Jan Juc as the main urban growth area for the Surf Coast Shire. It seeks to manage growth by establishing a settlement boundary, consolidating and strengthening the role of Torquay Town Centre and supporting residential infill in specified locations. It also seeks to preserve the green breaks between Torquay–Jan Juc, Bellbrae and the Thompson Creek Valley. Map 2 shows the Torquay–Jan Jac Framework Map.

• Clause 21.14 Bellbrae strategy: the clause seeks to protect the rural character of Bellbrae by maintaining the non-urban break between Torquay–Jan Juc and limiting its growth to a small settlement boundary.

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Map 2: Torquay–Jan Juc Framework Map a oCas 10:TruyJnJcFaeokMap Framework Juc Torquay-Jan 21.08: Clause to 1 Map UFCATPANN SCHEME PLANNING COAST SURF ae1 f14 of 10 Page

Other Surf Coast local plans and strategies

Bellbrae and Torquay–Jan Juc have existing structure plans that have been implemented into the Surf Coast Planning Scheme. Accordingly, the settlement boundaries identified in each of these structure plans help inform long-term settlement planning.

The Sustainable Futures Plan Torquay–Jan Juc 2040 referenced in Surf Coast Planning Scheme Clause 21.08 is the overarching strategic plan for Torquay–Jan Juc that has guided settlement planning in Torquay–Jan Juc until now. The plan set Torquay–Jan Juc’s current settlement boundary that includes the Spring Creek Future Residential Area and Messmate Road Future Residential Area.

An area to the north-east of Torquay and located outside the settlement boundary is identified as a potential future growth area subject to further investigation. The plan also encourages urban consolidation around the Torquay Town Centre, Jan Juc Town Centre and neighbourhood activity centres. Map 3 from the plan shows Torquay–Jan Juc as planned for 2040.

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Map 3: Sustainable Futures Torquay–Jan Juc 2040 map

Source: Sustainable Futures Plan Torquay–Jan Juc 2040

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The Bellbrae Structure Plan seeks to maintain Bellbrae as a small rural hamlet and to protect the surrounding scenic values. It proposes the settlement boundary be generally limited to the existing urban areas. It has been incorporated into Surf Coast Planning Scheme Clause 21.14 Bellbrae strategy. Map 4 shows the Bellbrae Strategic Framework Plan, which is included in Clause 21.14.

Map 4: Bellbrae Strategic Framework Plan

Source: (DELWP, 2020c)

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The following plans and strategies are also relevant to settlement planning.

• The Torquay–Jan Juc Neighbourhood Character Study Review provides guidance about how to protect the existing character of Torquay–Jan Juc by retaining low-rise development and by requiring space between buildings to allow for significant landscaping.

• The Torquay North Outline Development Plan identifies the locations of open spaces, schools, community services and a neighbourhood activity centre. The area is within the existing Torquay settlement boundary¸ and many dwellings have been completed or are under construction.

• The Rural Hinterland Futures Strategy mainly focuses on the area outside Torquay–Jan Juc, but it recognises the important role the township plays in supporting the hinterland. It encourages growth in Torquay, so growth pressures are not put on other towns like Bellbrae.

• The Spring Creek Precinct Structure Plan — Amendment C114 to the Surf Coast Planning Scheme — proposes to implement a precinct structure plan (PSP), a development contributions plan and a native vegetation precinct plan to support the urban development of the Spring Creek Valley out to 1 km west of Duffields Road. Since 1980, the Spring Creek Future Residential Area has been identified in local strategic plans and policies for urban growth. The corridor has been subject to several plans and strategies since then, leading to the presentation of Amendment C114 to the Council in 2016. In April 2019, the Minister for Planning decided to defer his final decision on the amendment pending the outcomes of the Surf Coast SPP process. This matter is further explained in Appendix 2.

• The Torquay Town Centre Project Urban Design Framework encourages some urban consolidation within central Torquay. The adopted framework sets a height limit of 10.5 m (three storeys) within Torquay’s commercial centre; it is yet to be included in the Surf Coast Planning Scheme.

• Built Form Guidelines Torquay Town Centre provides guidance about the siting and design of development within Torquay Town Centre and along The Esplanade. The Surf Coast Shire Council is considering the guidelines.

Greater Geelong local policies

The following local planning scheme policies are relevant to settlement planning for the parts of the Surf Coast declared area that are within the City of Greater Geelong local government area.

• Clause 21.06-2 Urban growth: the clause aims to limit urban sprawl by directing growth to designated urban growth areas including Armstrong Creek Urban Growth Area. For Breamlea, it seeks to prevent further subdivision and medium-density housing in this settlement area.

• Clause 21.11 Armstrong Creek Urban Growth Area: the clause recognises the importance of maintaining a rural break between Armstrong Creek Urban Growth Area and Surf Coast Shire.

• Clause 22.64 Discretionary Uses in Rural Areas: the clause seeks to discourage non- agricultural uses in agricultural areas to help preserve productive agricultural land.

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Other Greater Geelong local plans and • Planning Practice Note 37: Rural Residential strategies Development (PPN37) provides guidance about the development of residential opportunities in rural The Greater Geelong City Council is currently areas, and it outlines the strategic work planning proposing to implement its Settlement Strategy 2020 authorities should undertake when investigating into its planning scheme through Amendment C395. development opportunities. The strategy provides strategic direction about where future growth will be supported within the City • Planning Practice Note 47: Urban Grown Zone of Greater Geelong. The strategy seeks to limit the (PPN47) explains the purpose and provisions of the growth of smaller coastal settlements like Breamlea Urban Growth Zone and explains the role of a (located within the Surf Coast declared area) to their Precinct Structure Plan (PSP) in the Urban Growth existing urban extent. Zone including the requirements for preparing and implementing a PSP into a planning scheme as well The northern border of the Surf Coast declared area as the process for considering planning permits is aligned with the Armstrong Creek Urban Growth with or without a PSP being in place. Area. The strategy maintains the current policy direction for Armstrong Creek’s role as a growth area • Planning Practice Note 53: Managing coastal within the current extent of the Urban Growth Zone. hazards and the coastal impacts of climate It also proposes a consultation process for Greater change (PPN53) acknowledges that many coastal Geelong City Council to review the appropriateness areas have already experienced significant levels of the proposed settlement boundary in this location of development, and existing hazards will be and to address any significant anomalies, once exacerbated by the impacts of climate change. It Amendment C395 has been completed. also sets out guidance for considering strategic rezoning of coastal areas for urban purposes and The strategy states that the process is likely to referrals to floodplain managers. include: • Planning Practice Note 90: Planning for Housing • establishing assessment and decision criteria (PPN90) provides guidance about how to plan for (such as land that supports an enduring and housing growth and protect neighbourhood robust permanent boundary, assists infrastructure character. It outlines the strategic planning provision to land already identified for residential process that a planning authority should development and is contiguous with an existing undertake when considering the application of urban area) residential zones. It also defines key terms such as respecting character and preferred • confirming the appropriateness of current neighbourhood character. PPN90 provides clear boundaries for urban Geelong and district towns in guidance about minimal change, incremental the Bellarine Peninsula (with no changes to other change and substantial change areas and how towns) they flow into the application of the residential zones. • a consultation and submissions process • Planning Practice Note 91: Using the Residential • referrals to infrastructure and service agencies Zones (PPN91) should be read in conjunction with • establishing the timing of logical inclusion areas, PPN90. PPN91 provides guiding principles about given there is no short-to-medium-term need for how to apply the residential zones, and it outlines new residential development fronts five key principles. These include confirmation that all the residential zones allow for increased housing • independent oversight and that housing and neighbourhood character plans, when specifying preferred future housing • consultations with the Minister for Planning. and neighbourhood character outcomes for an area, must be consistent and align with each other. Planning practice notes PPN91 also provides a checklist for choosing the right zone and ensuring the desired building height matches the selected zone. The following planning practice notes are relevant to settlement planning.

• Planning Practice Note 36: Implementing a Coastal Settlement Boundary (PPN36) provides guidance about implementing a coastal settlement boundary in a planning scheme for settlements outside metropolitan Melbourne.

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• Participants envisioned any new developments as Public engagement sensitive to the natural landscape and existing township characteristics. outcomes Phase 2 public engagement sought feedback on a draft vision statement and potential policy approaches for seven policy domains, informed by The draft Surf Coast SPP has the feedback received through phase 1 public engagement. The results of phase 2 public been informed by two phases engagement found the following. of public engagement. • Over 75% of participants stated they either strongly agreed or agreed with the draft vision Phase 1 public engagement identified the following statement for settlement policy. values and threats relevant to settlements. • Despite the overall strong level of agreement, • The look and feel of settlements were the key value many participants considered the draft vision that participants identified, using words like statement was vague and not visionary enough. beachy, coastal, rural and connected to the bush to describe the characteristics of settlements that • Many participants felt that settlement boundaries should be protected. were an important factor to consider in the protection of the declared area, particularly • Participants identified characteristics of around Torquay–Jan Juc, but views were divided settlements that contribute to their look and feel over the development of Spring Creek Future as low-rise development which is subordinate to Residential Areas. nature, settlement boundaries, large residential lot sizes, pedestrian links to parks and beaches and • Settlement boundaries and placing limitations on the unique character of each settlement. development were also raised as important tools in relation to the policy domains of landscape, • Maintaining the relationships of settlements with environment and biodiversity, and environmental their surrounding natural environments, both risk and resilience. coastal and bushland, was important to participants. • Some workshop participants said that knowing the proposed location of any new growth, development • A sense of community was also a key value for or settlement boundary before they responded many participants. Participants see the area as was important, so they felt they could not answer being relaxed, family-friendly, laid-back and with a or participate in the discussions without this small-town feel. Many participants also value the information. ease-of-movement in the area (such as it being easy to find a car park at the shops, beaches or For further information about the engagement parks) and being able to live a country lifestyle phases, refer to the Surf Coast Distinctive Areas and while still having access to the services that Landscapes Phase One Engagement Findings Geelong offers. Report (Capire, 2019) and the Surf Coast Distinctive Area and Landscape Phase Two Engagement Report • Overdevelopment was seen as the main threat to (Capire, 2020) available at https://engage.vic.gov.au/ the declared area’s settlements. distinctive-areas-and-landscapes-program/surf- • Participants expressed a range of views about the coast. impacts of overdevelopment. They raised the loss of neighbourhood character of existing settlements, buildings not respecting the landscape and environmental values, the loss of older-style homes to new development, poor- quality designs and impacts to services and infrastructure.

• Participants identified planning controls and limitations on development as the best way to protect the area’s valued character.

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Population growth, visitor growth and land supply

Population growth and housing demand

Torquay–Jan Juc has experienced very strong population and housing growth over the past decade, comparable to growth in some areas of metropolitan Melbourne and Greater Geelong. The coastal setting of Torquay–Jan Juc, its proximity to Melbourne and Geelong and the availability of residential land make it a highly desirable place to live and visit. No socio-demographic factors indicate that the strong underlying demand will not continue if the land supply is available.

In 2018, the population of Torquay–Jan Juc was 20,940 people, which represents about 64% of the total population of the Surf Coast Shire local government area. The projected population of Torquay–Jan Juc in 2036 is 32,500 people. This is an additional 11,560 people and 5,240 new households. It is projected that about 6,190 dwellings will be needed to meet this demand.

As a popular coastal destination, about 20% of its dwellings are not permanently occupied, and it is anticipated that this will continue. During summer, holiday homeowners and other visitors substantially increase the population.

These projections take account of planning policies in the Surf Coast Planning Scheme that influence the supply of residential land. This includes areas identified for future urban growth through the Sustainable Futures Plan Torquay–Jan Juc 2040 and the Torquay– Jan Juc Framework Map (which is included in Surf Coast Planning Scheme Clause 21.08 and is shown in Map 2). These projections are an indication of possible future population and housing supply outcomes if current policy, demographic, economic and social trends continue.

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Land supply

Residential land supply

State policy set out in Clause 11.02 Managing growth requires councils to ‘plan to accommodate projected population growth over at least a 15-year period and provide clear direction on locations where growth should occur’ across the local government area.

To help monitor residential land supply shire-wide, Surf Coast Shire Council in 2018 commissioned Spatial Economics to prepare Residential Land Supply and Demand Assessment: Surf Coast (Spatial Economics, 2018), which includes an assessment of historic, current and future residential land supply and demand across the local government area. DELWP has also prepared the supplementary analysis in ‘Appendix 1: Torquay – Jan Juc housing supply estimates’ of this paper. The following summary of greenfield and infill housing supply for Torquay–Jan Juc is based on these analyses, where:

• greenfield generally refers to opportunities for residential land supply on broad-hectare sites previously used for rural land uses

• infill development refers to opportunities to increase residential densities in established urban areas.

The analyses show a capacity for about 4,250 dwellings to be provided through greenfield development within the current settlement boundary for Torquay–Jan Juc on land that is currently zoned for residential development. Table 1 shows the breakdown of this total, and Map 5 shows the areas.

Table 1: Torquay–Jan Juc greenfield capacity

Area Dwellings Spring Creek Future Residential Area (based on densities of the PSP proposed through 1,940 Amendment C114, as adopted by Surf Coast Shire Council and submitted to the Minister for Planning for approval in March 2018) South Beach Road 850 Remnant greenfield (subdivided lots that are vacant) 650 Duffields Road 480 Surf Coast Highway 330 Net total 4,250

Notes **The Messmate Road Future Residential Area is not included in the table because it is not currently zoned for residential growth. Appendix 1 shows it has been identified as having the potential capacity for 850 dwellings.

**The Torquay North East Future Residential Investigation Area has also not been included, because it is outside the current settlement boundary. It has been identified as having a potential capacity for 760 dwellings (Spatial Economics, 2018).. DELWP’s analysis identified the potential for about 1,600–2,600 additional infill dwellings within Torquay–Jan Juc. This depends on several different scenarios including current trends continuing and the level of uptake of infill development, as Appendix 1 explains.

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Map 5: Torquay–Jan Juc greenfield and infill capacity (all available lots)

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Adequacy of residential land supply Visitor growth

Based on an analysis of capacity, current policy, Tourism is one of the major drivers of the Surf Coast zoning and recent development trends in Torquay– economy. The scenic coastal location and Jan Juc, it is estimated that there is 21–30 years of international appeal of the nationally heritage-listed infill supply and 13 years of greenfield supply, as Great Ocean Road underpin the tourism industry Appendix 1 explains. This range varies depending on and are a key focus for the promotion of Torquay– the level of infill take-up and densities. Any changes Jan Juc as a tourist destination. Outdoor recreation, to current policy, zoning or recent development culture, food, events and the brand attraction trends will change these estimates. associated with the surfing industry are also key attractors. Combining the estimated capacity for infill and greenfield development, there is a total capacity in In 2019, 7.4 million people visited the Great Ocean Torquay–Jan Juc for about 5,850–6,850 dwellings. Road region (DELWP unpublished data, 2020). Of This is in line with the projected population of 32,500 these visitors, half were domestic day-trippers people by 2036 and the estimated 6,190 dwellings visiting from within Australia. Over a third of visitors needed to meet this demand (DELWP 2019d). were domestic overnight visitors, of whom almost all were Victorians. International visitors made up 14% of These capacity estimates do not include the all visitors, with day trips outnumbering overnight potential for residential development in commercial stays three-fold. About one-third of visitor nights in areas (such as shop-top development), which would commercial accommodation in the Great Ocean increase the anticipated dwelling capacity. Road region in 2019 were spent in hotels, a third in This analysis of residential capacity focuses on caravan parks and a third in commercial, self- Torquay–Jan Juc and shows that there is currently contained and hosted accommodation including enough capacity to meet the projected demand for guest houses, bed and breakfasts, rented houses the declared area. However, if there are policy and rented apartments. changes, other locations within Surf Coast Shire will On average, the number of visitors to the Great need to be explored for accommodating future Ocean Road region has increased by 6.4% a year residential growth to meet the projected demand at over the last decade. Recent forecasts indicate that a municipal level. total visitation to the Great Ocean Road region is expected to grow significantly over the next decade Industrial land supply to 10.9 million people a year by 2030. The mix of visitors is forecast to remain largely unchanged, with State policy set out in Clause 17.03-1S Industrial land domestic day-trippers continuing to be the largest supply requires the provision of an adequate supply market (49%) and domestic overnight trippers of industrial land in appropriate locations including continuing to be the second-largest market (35%) sufficient stocks of large sites for strategic (DELWP unpublished data, 2020). investment. Table 2 shows visitors to Torquay and the Great There is currently an estimated 4–6 years’ supply of Ocean Road region in 2009 and projections for 2030. industrial-zoned land in Torquay. Surf Coast Shire is It shows there were about 1.3 million visitors to currently undertaking strategic work to better Torquay in 2018–19, and over half were domestic understand the long-term requirements for day-trippers. Torquay is forecast to have nearly 1.8 industrial land in the local government area. Spatial million visitors a year within ten years. Economics (2019) suggests there is 20–31 years’ of land identified for future industrial zoning and development.

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Table 2: Surf Coast Shire visitors, 2019 and 2030

Trip type 2019 (‘000) 2030 (‘000) Torquay (total) 1,265 1,754 Domestic daytrip 762 1,077 Domestic overnight trip 484 677 International overnight trip* 19 31 Great Ocean Road region (total)** 7,376 10,941 Domestic daytrip 3,691 5,300 Domestic overnight trip 2,647 3,800 International daytrip 786 1,400 International overnight trip 251 441 * Due to data limitations, an international daytrip forecast could not be provided at the sub-region level. ** The tourism demand outlook for the Great Ocean Road region was undertaken from the baseline as at June 2019, when tourism performance was strong and underlying indicators were positive (pre-COVID-19). With no certainty of when borders will be opened to allow international travel nor the length of time it may take for the tourism sector to bounce back, the projected number of visitors to the Great Ocean Road region post-COVID-19 will differ to what is forecast. Source: DELWP, unpublished data, 2020 The challenges to increasing the length of stay and level of expenditure by visitors to the Great Ocean Road region including those who stay overnight in the region are set out in the following strategies:

• the 2004 Great Ocean Road Region – A land use and transport strategy

• the 2015 Shipwreck Coast Master Plan

• the 2015 Strategic Master Plan for The Great Ocean Road Region Visitor Economy 2015-2025.

Despite the scale of visitation, local communities are not fully harnessing and benefiting from the growth in the tourism sector. Figure 1 shows visitation figures from Tourism Research Australia’s national surveys. It shows that growth in overnight trips to the Great Ocean Road region has lagged behind other key tourist regions in Victoria. In 2018, overnight visits to the Great Ocean Road region grew 1%, compared to 8% for the Mornington Peninsula and 12% for the Yarra Valley.

Figure 1: Overnight visitors to Victoria’s key tourist regions, quarter-on-quarter change, 2014–18

Source: Tourism Research Australia, International Visitor Survey and National Visitor Survey

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To ensure local communities realise the benefits from tourism opportunities, significant additional visitor facilities, infrastructure and accommodation need to be provided. This needs to occur sustainably while protecting the environmental and cultural assets that make up the Great Ocean Road region. A range of accommodation types including lower-cost accommodation options for tourists (such as caravan parks) is also needed.

There are limited opportunities along the Great Ocean Road to develop more tourist accommodation and infrastructure. Many settlements along the Great Ocean Road are constrained by environmental factors (such as topography, erosion and bushfire risk) that limit development. As an established service centre for the region and an easily accessed destination in its own right, Torquay–Jan Juc is well-placed to capitalise on its location as the eastern gateway to the Great Ocean Road. It could provide additional tourist accommodation and infrastructure to cater to some of the actual and projected increase in visitor numbers. This would also allow the Surf Coast declared area to increase its share of the economic benefits from the tourists visiting the Great Ocean Road and the Surf Coast more broadly.

Surf Coast Planning Scheme Schedule 5 to Clause 37.01 identifies four locations within Torquay–Jan Juc as tourism development precincts:

• Surf Coast Gateway Precinct, Surf Coast Highway, Torquay

• Surf City Precinct, Surf Coast Highway, Torquay

• Town Centre Foreshore Precinct, The Esplanade, Torquay

• Corner Bristol Road and Surf Coast Highway, Torquay.

These precincts are where there is the capacity for tourism development including diverse forms of medium-density tourist accommodation, tourist activities and attractions and tourism-related retailing. Bell Street Torquay is also identified as a surfing and tourist activity precinct in the Surf Coast Planning Scheme Clause 21.08-4.

Also, the Rural Hinterland Futures Strategy supports nature-based tourism in some areas outside of settlements.

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Part B: Defining settlement boundaries

Settlement boundaries and green breaks

What is a settlement boundary?

A settlement boundary is the outermost limit of urban development for any given settlement. All urban- and township-related uses must be located within a settlement boundary. The main purpose of setting settlement boundaries within a declared area is to ensure urban development does not encroach on the declared area’s distinctive attributes, which are defined in accordance with the objects of Part 3AAB – Distinctive Areas and Landscapes of the Act.

Settlement boundaries give communities and industry greater certainty by providing clear directions about future growth: they identify areas that could potentially suit future greenfield development.

In accordance with section 46AV of the Act, a declared area framework plan that forms part of a SPP may specify settlement boundaries, or it may designate specific settlement boundaries as protected settlement boundaries. Section 3 of the Act defines:

• a settlement boundary: in relation to a plan of an area, as the boundary marking the limit of urban development in that area

• a protected settlement boundary: a settlement boundary in a declared area that is protected under a SPP.

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What is a green break? How are settlement boundaries and protected settlement boundaries A green break is non-urban land between settlements. Within the declared area, this is amended? primarily rural land zoned as Farming Zone or Rural Section 46AZC of the Act states that the Minister for Conservation Zone. Planning must not approve an amendment to a It is important to maintain green breaks in the planning scheme that is inconsistent with a SPP. As declared area. The green breaks between Torquay– such, once a SPP is approved, a settlement Jan Juc and Geelong, Bellbrae and Breamlea help to boundary can only be amended through the SPP conserve landscape character and significance. The review process. character of the open, rural, volcanic plains between A SPP must be reviewed at least every 10 years, and Geelong and Torquay, the coastal wetlands any proposed changes (other than minor changes surrounding Breamlea and the hilly landscape with and technical corrections) require endorsement by remnant vegetation surrounding Bellbrae are all responsible public entities and approval by the currently conserved by the existing green breaks. Governor in Council. It can be reviewed earlier than Claire Scott Planning (2020) details this further. this, but an earlier review will only be considered if Green breaks avoid settlement areas coalescing. further strategic planning work has been completed. They help to establish a sense of arrival and a unique A review may reassess the location of a settlement identity for each settlement area by containing the boundary if there are compelling reasons to do so. outward growth of urban areas. They also protect Any proposed change to a settlement boundary in a areas of environmental and cultural heritage value, SPP must be strongly supported by evidence and natural resources, agricultural land and strategic requires a rigorous planning scheme amendment infrastructure (such as water utilities) from process involving community consultation. encroachment by urban development. To amend a protected settlement boundary, the The policy direction to maintain green breaks is same process to amend a settlement boundary in a reinforced by state, regional and local planning SPP applies. As well, any amendment to a SPP that policies, as in clauses 11.01-1R, 11.03-3S, 21.02, 21.08 seeks to change a protected settlement boundary and 21.14 of the Surf Coast Planning Scheme as well must also be ratified by both Houses of Parliament. as clauses 21.07 and 21.11 of the Greater Geelong Therefore, a protected settlement boundary Planning Scheme. provides the highest level of protection.

Containing urban uses within settlements and restricting outward urban growth through the use of settlement boundaries helps to maintain green breaks.

How will the settlement boundaries operate?

Designating a settlement boundary does not automatically mean land within the boundary has been zoned for urban uses or township-related purposes (such as a park). Greenfield land inside a designated settlement boundary may remain as a non-urban use for several years, with urban development sequenced according to an approved structure plan or development plan.

A planning scheme amendment will be required to rezone the land. Further, the precise locations and form of any proposed greenfield development within a settlement boundary will usually be subject to a more-detailed structure planning or development planning process.

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• the draft vision and the objectives and strategies Methodology of the related policy domains in the draft Surf Coast SPP The methodology for establishing settlement boundaries in the declared area was founded on a • feasible boundary locations. robust evidence base and the results of public engagement. Planning principles

The starting point was to consider the distinctive The following planning principles are based on the areas and landscapes legislation (Part 3AAB of the legislative and policy context and public Act) and the extent of strategic planning work that engagement feedback. had been undertaken by councils, including local planning policies and strategies. Consideration was New development can: also given to planning principles, land development constraints, the vision and objectives of the draft • avoid areas of environmental hazard (such as Surf Coast SPP and feasible boundary locations. bushfire, flooding or erosion-prone areas)

• improve the conservation of environmental, Assessment criteria ecosystem and biodiversity values that can be achieved Some settlements in the declared area have planning policies that support an existing settlement • support the conservation of the significant boundary, with no contemplation of future greenfield landscapes in the declared area development sites on the periphery of the settlement. For these settlements, the existing • respond appropriately to the connections with planning policy will be reviewed in light of the Act’s Country, values and stewardship of the requirements for a declared area, to determine if the Wadawurrung settlement boundary can continue to be supported through the SPP. • respond appropriately to historic heritage places and the preferred township character However, where there are policies that support future greenfield growth based on existing strategic • enable communities to be created that are of planning and areas of proposed greenfield sufficient size to support the provision of development are identified, there is a greater risk of necessary infrastructure and services impacts on the declared area’s distinctive attributes, • be planned with access to existing and/or future particularly where they are located on the urban- employment opportunities rural interface of settlements. Greenfield development can result in urban encroachment into • allow for efficient public transport networks at a rural land that is of agricultural, environmental, sub-regional level cultural heritage, natural resource, landscape, and/ or strategic infrastructure value. Encroachment into • ensure land use conflicts can be avoided or green breaks can also disrupt the distinctive minimised (such as by not locating sensitive land identities of settlements. As such, a closer uses close to intensive agricultural and extractive assessment of these areas is warranted. industry uses)

Given the legislative objectives, policy context, public • provide opportunities for the sustainable use of engagement results and land supply and demand natural resources and productive land and ensure analysis explained in Part A, criteria have been these are supported (such as ensuring sufficient established for the assessment of proposed land is provided for agricultural and extractive greenfield areas on the periphery of settlements and industries) to help determine the proposed locations of settlement boundaries. Table 3 shows the criteria. • support strategic infrastructure projects

The criteria also take into account these interrelated • provide for efficient trunk services (including water, factors: sewerage, electricity, gas and telecommunications services). • planning principles

• land development constraints and opportunities

Surf Coast Settlement Background Paper 31 Department of Environment, Land, Water and Planning

Land development constraints and opportunities

As explained in Distinctive Areas and Landscapes: Assessment of Surf Coast against the declaration requirements of the Planning and Environment Act 1987 and the draft Surf Coast SPP, the Surf Coast declared area has significant environmental, cultural and economic attributes that provide constraints and opportunities for further development of greenfield land. Building on this technical work and previous strategic planning studies, land in identified greenfield areas was assessed against the following constraints and opportunities:

• Aboriginal cultural heritage

• biodiversity

• drainage

• environmental risks including bushfire and salinity

• land capability including agricultural and extractive industry uses

• landscape features

• historic heritage

• transport infrastructure and uses

• trunk services including water services, sewerage, electricity, gas and telecommunications.

The preparation of more-detailed structure plans will enable the precise location of constraints and opportunities in the greenfield growth areas to be determined. Where structure plans already exist, this information has been taken into account.

Feasible boundary location

It is also important that the community can easily identify and understand any proposed settlement boundaries: for example, if they align with property boundaries, roads and existing natural features like rivers, contour lines and the edges of biodiversity habitat sites.

Assessment criteria for greenfield areas

Table 3 shows the criteria used to assess current and potential greenfield areas for inclusion within a settlement boundary. These are the areas identified in current planning policies and located on the periphery of settlements. For the Surf Coast declared area, this means the areas in Torquay–Jan Juc designated as a ‘future residential investigation area’ or ‘future residential’ as set out in Surf Coast Planning Scheme Clause 21.08.

The table explains how the criteria relate to the Act’s objects in section 46AN, the policy direction the draft Surf Coast SPP establishes, and the planning principles, constraints and opportunities.

These criteria have been considered alongside the existing policy context, population growth and land supply data.

32 Surf Coast Settlement Background Paper Table 3: Greenfield area assessment criteria

Criterion Legislation objects Draft Surf Coast SPP Planning principle Constraint / Public engagement summary opportunity

Environmental S46AN (b) to enhance Vision: Native vegetation is restored and regenerated Improve the Biodiversity Participants highly value the declared significance the conservation of the to contribute to the area’s unique ecosystems and conservation of area’s natural environment and environment in biodiversity, providing habitat for endangered and environmental, biodiversity. declared areas threatened species and ensuring the area’s ecosystem and including the unique distinctive places (such as Point Addis Marine biodiversity values that Participants said any new habitats, ecosystems National Park, Karaaf Wetlands, Breamlea Flora and can be achieved. developments should be designed to and biodiversity of Fauna Reserve and other coastal reserves) flourish. be sensitive to the surrounding declared areas The declared area’s natural beauty and abundant environment. Some said the proposed wildlife are celebrated. development of Spring Creek could not do this, while others said it could. Objective: To conserve and improve the environment and biodiversity values of the declared area. Landscape S46AN (a) to recognise Vision: The landscapes of the declared area are Support the Landscape features The area’s beaches were the significance the importance of protected and renowned for their scenic beauty, conservation of the landscape feature most commonly distinctive areas and contribution to the area’s ecosystems and link to significant landscapes in identified as being valued by the landscapes to the Wadawurrung cultural heritage. Dramatic coastal the declared area. participants. people of Victoria and settings, superb views, woodlands, wetlands and the to protect and rural vistas between settlements are highly valued. Jan Juc and Point Addis beaches conserve the unique were commonly identified, followed features and special Objective: To conserve and enhance the declared by Bells Beach and Point Danger. characteristics of area’s significant landscapes. Participants felt that any new urban those areas and development and infrastructure landscapes should be considered with regard to its long-term environmental impact rather than design amenity. Aboriginal S46AN (d) to recognise Vision: Wadawurrung rights to self-determination are Respond appropriately Aboriginal cultural Many participants felt they did not cultural the connection and respected so that their aspirations for land, water to the connections with heritage have the knowledge to comment on heritage stewardship of and culture are realised through the transfer of Country, values and this vision statement, however they significance Traditional Owners in relevant decision-making powers. Wadawurrung stewardship of the said they still considered it an relation to land in knowledge and practices inform planning, land and Wadawurrung. important policy domain. declared areas. waters management decisions and help to protect environment and biodiversity values. Aboriginal Participants said the Traditional cultural heritage is highly valued, and the area is Owners should determine what is of respected as a place of significance to the Aboriginal cultural significance. Wadawurrung.

Objective: To conserve, strengthen and promote the declared area’s Aboriginal cultural heritage values and partner with the Wadawurrung to care for Country. Criterion Legislation objects Draft Surf Coast SPP Planning principle Constraint / Public engagement summary opportunity

Historic S46AN (a) to recognise Vision: The area’s rich surfing history, culture and Respond appropriately Historic heritage Some participants said local heritage and the importance of international attractions are thriving and create a to historic heritage community groups and surf clubs township distinctive areas and strong sense of place for the declared area. Historic places and the preferred (such as the Torquay Surf Lifesaving character landscapes to the heritage sites (such as Bells Beach and the nationally township character. Club and the Torquay Boardriders people of Victoria and heritage-listed Great Ocean Road) are respected and Club) should be identified as significance to protect and celebrated. important aspects of Torquay – Jan conserve the unique Juc’s heritage. features and special Objective: To protect, strengthen and promote the characteristics of declared area’s historic heritage values. Bells Beach should be specifically those areas and recognised as an important and landscapes internationally recognised heritage place Natural S46AN (a) to recognise Vision: The area’s distinctive cultural heritage, Ensure land use conflicts Land capability Participants generally felt the resources and the importance of environment, historic heritage and landscapes can be avoided or including agricultural agricultural industry should be productive distinctive areas and support a flourishing, prosperous economy which is minimised (such as by and extractive industry supported. Some participants land landscapes to the based on sustainable and responsible tourism, not locating sensitive uses strongly opposed additional people of Victoria and agriculture and natural resources, manufacturing land uses close to extractive industries in the area. significance to protect and and other key industries. intensive agricultural conserve the unique and extractive industry features and special Objectives: To support a sustainable and responsible uses) Provide characteristics of visitor economy that protects and promotes the opportunities for the those areas and landscape significance, environment and biodiversity sustainable use of landscapes values, Aboriginal cultural values and historic natural resources and heritage values of the area. To support a strong productive land and regional economy, including agriculture and natural ensure these are resource industries, that is compatible with the supported (such as landscape significance, environment and biodiversity ensuring sufficient land values, Aboriginal cultural heritage, and historic is provided for heritage values of the declared area. agricultural and extractive industries). Criterion Legislation objects Draft Surf Coast SPP Planning principle Constraint / Public engagement summary opportunity

Strategic S46AN (a) to recognise Vision: Torquay—Jan Juc is a vibrant and cohesive Enable communities to Transport Some participants noted the infrastructure the importance of regional service centre that supports the needs of be created that are of infrastructure and uses increased pressure on infrastructure distinctive areas and residents and the tourism economy. Developments sufficient size to support as a result of the area’s growing and built form Trunk services significance landscapes to the are sympathetic to the coastal and hinterland the provision of population and how this can reduce people of Victoria and landscape setting, and it is well-connected to the necessary infrastructure including water the area’s amenity. Others said there to protect and surrounding area. and services. services, sewerage, were opportunities to support more conserve the unique electricity, gas and sustainable transport options (such features and special Objectives: To ensure the integrated provision of Allow for efficient public telecommunications as walking and cycling). characteristics of strategic infrastructure protects and enhances the transport networks at a those areas and declared area’s distinctive attributes and values, sub-regional level. landscapes while meeting community needs. Be planned with access To maintain the role of Torquay—Jan Juc as a to existing and/or future sustainable regional service centre that supports the employment community’s social and economic needs and opportunities. increases their resilience to climate change impacts. Support strategic infrastructure projects.

Provide for efficient trunk services (including water, sewerage, electricity, gas and telecommunications services). Environmental S46AN (a) to recognise Vision: The declared area is resilient to the impacts of Avoid areas of Environmental risks Participants raised the difficulties of risks the importance of climate change. The declared area’s greenhouse gas environmental hazard including bushfire and accommodating more people in the distinctive areas and emissions are minimised as best practice approaches (such as bushfire, salinity area — permanent residents and landscapes to the to environmentally sustainable design and flooding or erosion- visitors — while protecting the natural people of Victoria and development and investment in walking, cycling and prone areas) Drainage environment. to protect and public transport infrastructure are prioritised. conserve the unique Participants said that in high-risk features and special Objective: To support the resilience of the declared areas, roads should provide for characteristics of area’s distinctive attributes by taking sustained access and egress during major those areas and measures to mitigate greenhouse gas emissions and bushfires, and power lines should be landscapes adapt to the impacts of climate change and natural located underground. hazards. Department of Environment, Land, Water and Planning

Proposed settlement boundaries

Torquay–Jan Juc

To determine the location of proposed settlement boundaries for Torquay–Jan Juc, the following areas shown in Map 6 were assessed against the criteria in Table 3. Torquay-Jan Juc settlement boundary assessment areas:

• Spring Creek Future Residential Area

• Messmate Road Future Residential Area

• Torquay North East Future Residential Investigation Area.

These areas were considered in the context of the residential densities anticipated in Sustainable Futures Plan Torquay–Jan Juc 2040 and in Residential Land Supply and Demand Assessment: Surf Coast, and the densities proposed through Spring Creek Precinct Structure Plan – Amendment C114 (as adopted by the Surf Coast Shire Council and submitted to the Minister for Planning for approval in March 2018).

Please refer to Part A of this paper for further context.

36 Surf Coast Settlement Background Paper Map 6: Torquay–Jan Juc Settlement Boundary AssessmentDepartment Areas of Environment, Land, Water and Planning

Surf Coast Settlement Background Paper 37 Department of Environment, Land, Water and Planning

Spring Creek Future Residential Area

Locational context

Map 7 shows the extent of the Spring Creek Future Residential Area. It is located to the west of Duffields Road, Torquay and is bounded to the south by the nationally heritage-listed Great Ocean Road and to the north by Grossmans Road. The area’s western boundary is located 1 km west of Duffields Road.

The Spring Creek Future Residential Area is dissected by Spring Creek from east to west. The land to the west is undulating farmland, and Spring Creek continues to the west towards Bellbrae.

The land to the east of Duffields Road includes a recent residential subdivision, some of which is still to be developed. Spring Creek continues to the east through Torquay towards the coast. The land to the north and south of the Spring Creek Future Residential Area is generally low-density residential areas.

The Surf City Precinct, Surf Coast Gateway Precinct and Baines Crescent employment centre are the closest commercial areas, located along Surf Coast Highway.

38 Surf Coast Settlement Background Paper Map 7: Spring Creek Future Residential Area Department of Environment, Land, Water and Planning

Surf Coast Settlement Background Paper 39 Department of Environment, Land, Water and Planning

Planning context

The Spring Creek Future Residential Area is designated for urban growth and is located within the existing settlement boundary for Torquay–Jan Juc in Surf Coast Planning Scheme Clause 21.08 – Torquay–Jan Juc Strategy. Most of the land is in an Urban Growth Zone (UGZ1), which triggers the requirement to prepare a Precinct Structure Plan (PSP) that describes how the area will be developed before non-urban land can be converted to urban land and appropriate zonings applied. The remaining land is occupied by the Christian College Surf Coast Campus, and it is in a Special Use Zone.

The area has a long planning history. It has been subject to various strategic plans and planning scheme amendments to prepare the land for development. Appendix 2 has a detailed history of the Spring Creek Future Residential Area.

The PSP prepared for the Spring Creek Future Residential Area and adopted by Council through Amendment C114 proposes 1,939 residential lots with an average density of about 10 dwellings per hectare with an estimated residential population of 4,925 persons (assuming 2.54 persons per household).

Public engagement results

The proposed urban development of the Spring Creek Future Residential Area is a highly contentious community issue. It was a key issue raised by participants during phases 1 and 2 public engagement for the Surf Coast Distinctive Area and Landscape project.

The Spring Creek Future Residential Area has been identified in various local strategic plans for potential urban growth since the 1980s, but views on the matter are mixed. During public engagement activities, participants who do not support urban development in the Spring Creek Future Residential Area said the land makes a substantial contribution to the visual amenity and natural features of the area and is an integral part of the green break between Torquay–Jan Juc and Bellbrae. Participants in support of developing the Spring Creek Future Residential Area said the land has long been identified as a growth area for Torquay–Jan Juc and that planning for the development of the area is well-advanced. They emphasised that the development of the area will provide local jobs and investment.

40 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Assessment

Table 4 is an assessment of the Spring Creek Future Residential Area against the assessment criteria in Table 3.

Table 4: Spring Creek Future Residential Area assessment

Criteria Comments

Environmental Most of the land within the Spring Creek Future Residential Area has been cleared for agriculture. significance There are areas with biodiversity value located along Spring Creek and pockets of significant native vegetation.

There are areas of Swampy riparian woodland along Spring Creek (Ecology and Heritage Partners, 2016). While much of the vegetation along the creek has been planted, it forms a habitat corridor by linking area of vegetation downstream. There is an area of Heathy woodland located on properties fronting Grossmans Road and within the Grossmans Road Reserve.

Areas of Grassy woodland, which include the Bellarine yellow gum (listed as an endangered species under the Victorian Flora and Fauna Guarantee Act 1988) and Coastal alkaline scrub are located on land adjacent to the intersection of Duffields Road and the Great Ocean Road. The findings of the biodiversity assessment prepared for the Spring Creek PSP recognised that these were all features of environmental significance that were worthy of being retained.

The Bellarine yellow gum is a species endemic to the Surf Coast and Bellarine Peninsula declared areas. The main populations are in and around Ocean Grove and Torquay, with scattered occurrences in Wallington and Jan Juc. These populations are highly fragmented and mostly on freehold land, and they are threatened by the growth of these coastal settlements. There are few remaining populations of the Bellarine yellow gum. The area, extent and quality of habitat are declining, as is the number of sub-populations and mature individuals.

The Surf Coast Planning Scheme includes a Vegetation Protection Overlay (VPO) Schedule 1 that applies to land in the area for the protection of the Bellarine yellow gum, and an Environmental Significance Overlay (ESO) Schedule 1 is already in place to provide protection within the Spring Creek Future Residential Area.

Phase 2 engagement found that respondents put a high value on the natural environment, with many people supporting protecting and expanding natural assets in the area.

The Spring Creek PSP identified 18.165 hectares of native vegetation and 83 scattered trees across the site. The Spring Creek Native Vegetation Precinct Plan identifies that 61 of the identified scattered trees on site would be removed: 39 of these are identified as Bellarine yellow gum. Offsets must be provided for this lost vegetation, and general habitat offsets are required in addition to the species-specific offsets for the Bellarine yellow gum.

There are Bellarine yellow gum on both freehold land and adjacent roadsides, so consideration of the impact of the development of the Spring Creek Future Residential Area must include the potential impact from road upgrades, new road connections and the installation of urban services.

In summary, previous planning of Spring Creek Future Residential Area has recognised the importance of responding to and respecting areas of environmental significance and enhancing its environmental assets. While offsets are required for the vegetation removed, the development outcomes envisaged by the adopted Spring Creek PSP may have a significant impact on the environmental values of the Spring Creek Future Residential Area. A particularly significant impact is the loss of the endangered Bellarine yellow gums.

Surf Coast Settlement Background Paper 41 Department of Environment, Land, Water and Planning

Criteria Comments

Landscape The panel appointed to review and advise on Amendment C66 (which included implementing the significance 2012 Sustainable Futures Plan Torquay–Jan Juc 2040) stated ‘it was not put to the panel that there are environmental values of state or national significance that would preclude carefully planned development of the Spring Creek Valley west of Duffields Road’. The panel also found that ‘whilst attractive, the landscape of the valley is not of such significance to prevent development, but rather is a significant input to the design of any eventual development’ (Planning Panels Victoria, 2013).

The panel appointed to review and advise on the Spring Creek Precinct Structure Plan (Amendment C114) did not have submissions put to it that argued the landscape values of the area, and it was therefore not a matter responded to in the panel report.

The land in the Spring Creek Future Residential Area is within the state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape. The coastal hinterland is an important component of the landscape, with its undulating vistas framed by roadside vegetation across undulating paddocks.

Claire Scott Planning (2020) recommended that future development in and around Torquay–Jan Juc should not be ‘urban’ in character. This is to ensure it does not to appear incongruous with the significant landscape setting and to ensure the green break between Torquay West and Bellbrae is not progressively lost.

The results of phase 2 engagement show that many participants believe the distinctive landscapes of Point Addis, Bells Beach and the surrounding coastline and hinterland are of high value and should be protected. There was strong support for planning actions to conserve and enhance areas with identified geological or landscape value, by increasing efforts to protect the health of ecological systems and the biodiversity they support.

In summary, there is now more evidence to support the importance of the landscape at the Spring Creek Future Residential Area, and this appears to align with the community view that the Torquay–Jan Juc coast and hinterland are highly valued.

Past strategic planning has proceeded without the benefit of investigations into the significant values of the Spring Creek Future Residential Area or the broader, state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape. There is a need to ensure that the values of the Torquay Coast, Coastal Saltmarsh and Woodland landscape are given sufficient weight in determining any land use and development proposals for the Spring Creek Future Residential Area.

Aboriginal Spring Creek, which runs through the area, is a waterway of Aboriginal cultural heritage cultural significance to the Wadawurrung. heritage The floodplain on the southern side of Spring Creek is highly sensitive, due to the presence of significance Aboriginal cultural heritage (Ecology and Heritage Partners, 2015a).

The northern side of the Spring Creek floodplain along with the Jaar Nu Ruc Creek floodplain and the elevated landforms overlooking Spring Creek have medium sensitivity.

Phase 2 engagement found strong community support for recognising, preserving and protecting Aboriginal cultural heritage. People are very interested in learning more about Wadawurrung Culture.

The development proposed by the Spring Creek PSP includes wide recreation reserves along Spring Creek and Jar Nu Ruc Creek to avoid development on much of the highly sensitive parts of the site. The elevated landforms overlooking Spring Creek are not identified in the PSP as areas to be protected. In summary, there is a need to ensure that all parts of the area that are of Aboriginal cultural heritage significance be addressed in determining any land use and development proposals for the Spring Creek Future Residential Area

42 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Criteria Comments

Historic Ecology and Heritage Partners (2015b) found one historic heritage site of significance within the heritage and Spring Creek Future Residential Area. The site — the Great Ocean Road and Environs — is township registered on the National Heritage List, the Victorian Heritage Register and the National Trust character Register. significance Phase 2 engagement found that respondents highly value the Great Ocean Road, its coastal character and the hinterland setting of Torquay – Jan Juc.

If development in the Spring Creek Future Residential Area is well-designed, it can support the preferred township character and historic heritage values of central Torquay – Jan Juc.

The Claire Scott Planning (2020) found that ‘Future development in and around Torquay – Jan Juc should also adhere to the principle that development should not protrude above hilltops and ridgelines. It is important that a visual connection to the natural landform remains, and that topography and vegetation are the key visible skyline/backdrop elements.’. Therefore, maintaining wide buffers to the Great Ocean Road would help preserve the character of the settlement within its landscape setting.

The Spring Creek PSP proposes residential allotments (in parts) directly fronting the Great Ocean Road and new residential street intersections, both of which will impact the appearance and character of the Great Ocean Road.

In summary, there is a need to ensure that a design response that is sensitive to the site and its surrounds, particularly at the interface with the historically significant Great Ocean Road, be given status in determining any land use and development proposals for the Spring Creek Future Residential Area.

Natural The Surf Coast Shire is a major nature-based tourism destination. Bells Beach, the Great Ocean resources and Road and Torquay – Jan Juc make a major contribution to the Surf Coast’s economy, with the productive potential for this contribution to increase. Of the 5.29 million visitors who travel the Great Ocean land Road annually, 40% visit the Surf Coast (Surf Coast Shire, 2019b). significance A regional-scale desktop analysis of land capability by Imhof et al. (2018) found that the Spring Creek Valley and surrounding areas do not contain soils of high or strategic value and do not have intensive or higher value agricultural activity.

Despite the potential for the existing soils to limit agricultural activity at Spring Creek Future Residential Area, agriculture remains an important asset of the region, particularly the agri-food businesses which are part of the visitor economy. Tourism-orientated farming enterprises near Torquay – Jan Juc benefit from the visitor economy through their exposure to passing tourist traffic.

Phase 2 engagement found that respondents highly value the agricultural landscape surrounding Torquay – Jan Juc. Landowners within the Spring Creek Future Residential Area and surrounding areas have said that this area is no longer viable for agricultural activity.

The Spring Creek Future Residential Area does not contain any active extractive industry operations and the area is not identified as containing extractive resources of significance.

In summary, the Spring Creek Valley soils are not of strategic significance and current agricultural activity in the valley is not strategically important to the region’s agricultural industry. However, there is some merit in considering rural land uses in supporting the visitor economy.

Surf Coast Settlement Background Paper 43 Department of Environment, Land, Water and Planning

Criteria Comments

Strategic The Spring Creek Future Residential Area does not contain strategic infrastructure of state infrastructure significance, and it does not contain built form features of significance. and built form Local water supply and telecommunications infrastructure is located within the Spring Creek significance Future Residential Area. All major physical infrastructure services (such as reticulated water, sewerage, gas and electricity) can be provided to Torquay – Jan Juc by extending the existing trunk infrastructure in the area (Spiire, 2015).

The Christian College Surf Coast Campus currently offers prep to year 2 places. The school will support and be supported by urban development of the Spring Creek Future Residential Area.

Some respondents to Phase 2 engagement identified the need to support the local economy. They said that development in the Spring Creek Future Residential Area would help support the existing strategic and community infrastructure and would increase the demand for the expansion of the infrastructure in Torquay – Jan Juc.

The Spring Creek PSP identifies a 1.2-ha site for a neighbourhood community facility adjacent the neighbourhood activity centre. Both the site acquisition and construction of the neighbourhood community facility are proposed to be funded through a future development contributions plan. ASR Research (2015) found there was a need for a community facility in Spring Creek Future Residential Area (to provide community meeting rooms and potentially a performing arts centre), local parks, playgrounds, paths and trails along Spring Creek.

The Spring Creek PSP also identifies sites for a neighbourhood activity centre and two local convenience centres. The Amendment C114 panel that considered the Spring Creek PSP concluded that there will be a need for a Neighbourhood Activity Centre of up to 5000 square metres of retail floor space by the time development proceeds in the Spring Creek PSP area. The panel also concluded that early delivery of the neighbourhood activity centre would benefit both the existing Jan Juc and emerging Spring Creek communities.

The Spring Creek PSP proposes an extension of the existing bus route from Grossmans Road along Duffields Road and along a bus-suitable road to be constructed through the southern area of the Spring Creek Future Residential Area to the Great Ocean Road.

In summary, there is a need to ensure that the socio-economic benefits of infrastructure provision be considered in determining any land use and development proposals for the Spring Creek Future Residential Area.

44 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Criteria Comments

Environmental Bushfire risk investigations undertaken for the Spring Creek PSP identified that the area risks is at low-to-moderate risk of bushfire. A large, established grassfire could approach the area from the west or south-west.

There is also a small area along Spring Creek where the Land Subject to Inundation Overlay (LSIO) applies. The LSIO identifies land in a flood storage or flood fringe area affected by the 1-in-100-year flood.

Coffee (2015) identified sites of two landslips on the steep slopes along the Spring Creek Valley. It recommended detailed topographical surveying and geotechnical assessment and remediation works before any development occurs. Further they identified several sources of potential contamination including imported fill of unknown quality, the use of herbicides and pesticides on a vineyard, the potential for asbestos-containing material in derelict or destroyed buildings and the site of a former sheep dip.

Coffey (2015) also found soils with acid-sulphate properties in sediments in the Spring Creek floodplain. It recommended that before excavation can occur in these areas, further analysis is required to determine what action is required to prevent acidic drainage. The site soil tests did not identify any soil samples where soil salinity was of concern.

Spring Creek and its tributary to the north form the main drainage infrastructure for the Spring Creek Future Residential Area. For any new development new stormwater detention and water-sensitive urban design waterbodies and other works will be required to provide for the connection of the new urban stormwater drainage system into the creek. While the objective of these new facilities will be to minimise ongoing impacts on the environment and water quality in Spring Creek, their construction will result in significant localised impacts like the clearing of vegetation which will harm the Spring Creek environment.

In summary, there is a need to ensure that in determining any land use and development proposals for the Spring Creek Future Residential Area that the extent, form and layout of any development is addressed in response to bushfire, stormwater drainage and other environmental risks.

Discussion

The question of whether the Spring Creek Future Residential Area should be developed has been debated for many years. It is important that this matter is now considered within the new context of the Surf Coast being declared a distinctive area and landscape.

The starting point was to consider the Act’s objects, which emphasise the importance of recognising and conserving the unique features of areas and landscapes, environmental and Aboriginal cultural heritage attributes.

It was found that while the area has a medium level of biodiversity, it has pockets of endangered Bellarine yellow gum; and that Spring Creek is a waterway of Aboriginal cultural heritage significance and an important habitat corridor. The area is part of a landscape of state significance, and in its undeveloped state is part of the green break between Torquay–Jan Juc and Bellbrae.

The development proposed by the Spring Creek Precinct Structure Plan is expected to avoid development on the Spring Creek floodplain, but drainage works to serve the new development will have localised impacts (such as connections to Spring Creek and its tributaries from urban stormwater systems) that will need to be assessed in the context of potential soil disturbance creating acid drainage.

In its undeveloped state, the Spring Creek Valley and its surrounds pose a low-to-moderate bushfire risk to the existing residential development east of Duffields Road.

Surf Coast Settlement Background Paper 45 Department of Environment, Land, Water and Planning

Potential impacts on the nationally heritage-listed However, the findings from this process were Great Ocean Road require careful management and disregarded by the panel appointed for Amendment a design response that ensures development fits in C114 due to it not being considered representative of with the landscape character of the area. the community and being an untested engagement process. The Spring Creek Future Residential Area does not contain or support proposed infrastructure of state The panel did not accept the environmental significance. Local water supply and sensitivity of the area as justification for lower telecommunications infrastructure are located densities or participants’ vision for lower densities. within the area along with the Christian College Surf The panel compared the area to other growth areas Coast Campus. The development proposed by the in Melbourne and said that higher densities were Spring Creek PSP can be serviced by extending the appropriate for a ‘growth area’. existing trunk services network. The PSP includes a new neighbourhood and local activity centres and The PSP indicates that development in the area community facilities that are expected to benefit the could be designed in such a way as to manage Jan Juc and the Spring Creek Future Residential impacts on sites of environmental and Aboriginal Area communities. cultural heritage significance. However, developing the area at the densities proposed in the PSP is It is also important to consider the planning history expected to significantly impact the surrounding of the Spring Creek Future Residential Area and the rural landscape character and environs. existing planning policy and strategic planning for Development of the Spring Creek Future Residential the area undertaken by the Surf Coast Shire Council. Area is likely to be visible from the nationally The Spring Creek Future Residential Area west of heritage-listed Great Ocean Road when Duffields Road has a long history as an area approaching Torquay–Jan Juc from the west and designated either as a long-term growth corridor or from within the Beach Road residential area west of as a future urban growth area. the Surf Coast Highway. Claire Scott Planning (2020)

found that development on the undulating-to-hilly Surf Coast Planning Scheme Clause 21.08-2 topography in Torquay–Jan Juc is the most visible. designates the Spring Creek Valley out to 1 km west of Duffields Road as an area for new residential This visibility becomes a negative impact when there growth; and it is in an Urban Growth Zone, triggering is a lack of vegetation and the excessive bulk of the requirement for a PSP to be prepared. buildings appears incongruous with the highly valued coastal landscape. This is further The PSP is well-advanced and involved a significant exacerbated if buildings sit above the ridgeline or public engagement approach. The assumption that hilltops. Lower-density residential development with Spring Creek Future Residential Area would larger lots allowing dwellings to be set back from contribute to the housing supply for Torquay–Jan roads among existing vegetation or additional Juc informed the G21 Regional Growth Plan including vegetation achieves a more balanced landscape the forecast allocation of population growth across outcome. the region. It has also informed Surf Coast Shire Council’s strategic planning work. A low-density residential development in the Spring Creek Future Residential Area could also help to Preparation of the PSP was preceded by a achieve a more ecologically sustainable outcome. community panel process through which Surf Coast This is consistent with the 2007 Torquay and Jan Juc Shire Council sought to involve representatives of the Structure Plan, as explained in Appendix 2. community, landowners and the development community in planning for the plan. Through the process of four independently facilitated workshops, the community panel was asked to advise the Council about how to design urban growth that is in balance with the surrounding environment.

46 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Proposal for the draft Surf Coast SPP Option 2: Green break area (excluded from the settlement boundary) Proposal 1: that two options for the Spring Creek Future Residential Area be presented for public Map 20 shows this option, which shifts the existing consultation: settlement boundary of Torquay–Jan Juc to Duffields Road and applies a protected settlement • Option 1: Low density ecologically sustainable boundary. It makes the Spring Creek Future development (with the current settlement Residential Area part of the green break between boundary retained), which Map 19 shows Torquay–Jan Juc and Bellbrae and protects the area from urban encroachment. • Option 2: Green break area (excluded from the settlement boundary), which Map 20 shows Under this option, the land at Spring Creek Future Residential Area is rezoned to an appropriate rural Option 1: Low density ecologically sustainable zone and future residential growth accommodated development (with the current settlement elsewhere within the Torquay–Jan Juc urban area, boundary retained) within the Surf Coast Shire local government area and/or the G21 region. Map 19 shows this option, which maintains the Spring Creek Future Residential Area within the existing Messmate Road Future Residential Area settlement boundary of Torquay–Jan Juc. It designates the area as being potentially suitable for Locational context low density ecologically sustainable residential development or an alternative non-residential use Map 8 shows the location of the Messmate Road (such as a sensitive ecotourism development or Future Residential Area, which is an area north-west community infrastructure). The existing settlement of Messmate Road, Torquay. boundary is reinstated as a protected settlement boundary to prevent any further development The area is surrounded by undulating farmland to westwards towards Bellbrae. the north, with a natural ridgeline acting as the current settlement boundary. Under this option, the current Urban Growth Zone could remain. However, the PSP should be revised to The closest activity centre is Torquay North ensure development is designed in a manner that Neighbourhood Activity Centre. The land abuts the recognises its location within a state-significant northern employment centre, and it has been landscape and which responds to its landscape identified as a possible terminal location for the character, Aboriginal cultural heritage and the future transit corridor between Armstrong Creek and setting of the Great Ocean Road. For instance, the Torquay–Jan Juc. The proposed Armstrong Creek to density of development in the most-prominent PSP Torquay Transit Corridor is intended to provide an areas (such as along the Great Ocean Road frontage additional public transport link to Geelong. It will or on the prominent hilltops) should be reduced to support tourism visitation to the Great Ocean Road, allow more space for protecting existing vegetation as well as access for the regional community to and planting new vegetation. Development should Geelong’s jobs, services and amenities. not be urban in character: lot sizes, building site coverage, building heights, external materials, permeability and landscaping would need to be carefully considered so as not to appear incongruous with the significant landscape setting.

Future development in this area is to provide a transition to the rural landscape to the west and minimise the loss of vegetation. This could be achieved with a range of lot sizes, all low density, and the most substantial lots provided in visually sensitive locations with vegetated buffers. Visually sensitive locations are areas such as along the Great Ocean Road frontage, on ridgelines (to ensure development does not intrude on the highly valued landscape) and at the urban-rural interface to the west. This will be subject to a further bushfire risk assessment.

Surf Coast Settlement Background Paper 47 Map 8: Messmate Road Future Residential Area and Torquay North East Future Residential InvestigationDepartment of Environment, Area Land, Water and Planning

48 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Planning context

Most of the land is zoned Farming Zone, and the area is identified in Surf Coast Planning Scheme Clause 21.08 as an area for future residential growth within the existing settlement boundary for Torquay–Jan Juc.

Spatial Economics (2018) expects the area to allow for the provision of about 850 dwellings.

Landowners are currently undertaking technical work to support the preparation of a planning scheme amendment Surf Coast Shire Council to consider.

Public engagement results

Development of the Messmate Road Future Residential Area was not a prominent issue raised by participants during phase 1 or phase 2 engagement.

Some participants mentioned the area when advocating for protected settlement boundaries for Torquay– Jan Juc. They said urban development in this area should not encroach into the productive agricultural land surrounding Torquay–Jan Juc. The Thompson Creek Valley to the north and north-west of the area is recognised for its role as a green break between Geelong and Torquay–Jan Juc and as an area of particularly productive agricultural land.

Assessment

Table 5 is an assessment of the Messmate Road Future Residential Area against the assessment criteria in Table 3.

Table 5: Messmate Road Future Residential Area assessment

Criteria Comments

Environmental This area has a lower biodiversity value on balance with other undeveloped areas in the declared significance area. Most of the land has been cleared for agriculture. There is a small area of significant native vegetation, which is covered by Vegetation Protection Overlay (VPO1) and Environmental Significance Overlay (ESO4).

There is a need to ensure that areas of environmental significance and biodiversity value are considered as part of the structure planning and in determining any land use and development proposals for the Messmate Road Future Residential Area.

Landscape The land is identified as part of the regionally significant Mount Duneed Plain and significance Surrounds landscape. It also forms part of the green break between Torquay–Jan Juc and Geelong.

Claire Scott Planning (2020) recommended that any future development in this area should not protrude above the natural ridgeline.

The findings set out in the Sustainable Futures Plan Torquay–Jan Juc 2040 are that a 30-m-wide buffer to the defined ridgeline should be provided, and vegetation on road reserves should be retained as part of any new development.

Aboriginal There are no known areas of Aboriginal cultural heritage sensitivity in this area, however cultural sites or artefacts could be found subject to further investigation. It is noted that the heritage whole declared area is of significance to the Wadawurrung. significance

Surf Coast Settlement Background Paper 49 Department of Environment, Land, Water and Planning

Criteria Comments

Historic There are no sites of historic heritage significance in the area. heritage and If development in the Messmate Road Future Residential Area is well-designed, it can township support the preferred township character and historic heritage values of central character Torquay – Jan Juc. significance

Natural Surf Coast Shire Council has identified the area as being well-suited to agribusiness and resources and commercial farming (Surf Coast Shire, 2019b).This area is not identified as an extractive productive industry interest area. land significance

Strategic As this area has been identified as a possible location for the proposed Armstrong Creek infrastructure to Torquay Transit Corridor, development of the area has the potential to support the and built form viability of this infrastructure. significance All trunk services (such as reticulated water, sewerage, gas and electricity) are available and can be provided to the area (Surf Coast Shire, undated).

Environmental The land is within an identified bushfire-prone area. Bushfire Management Overlay risks applies to a portion of the land, meaning that bushfire protection measures will need to be implemented to ensure development is only permitted where the risk to life and property from a bushfire can be reduced to an acceptable level. A preliminary bushfire hazard assessment identified that development of this area is not likely to result in a net increase in risk to existing and future residents, property and community infrastructure, subject to the application of appropriate bushfire protection measures (DELWP 2020). The extent, form and layout of any proposed development will need to respond to bushfire risk.

There are no other known environmental risks in the area.

Discussion

The Messmate Road Future Residential Area is identified in the Surf Coast Planning Scheme as a future growth area. The area has no known significant environmental, cultural heritage or natural resource constraints, except for the areas covered by a Vegetation Protection Overlay (VPO1) and an Environmental Significance Overlay (ESO4). The area has been identified as part of the regionally significant Mount Duneed Plain and Surrounds landscape.

Development of the area could support the possible terminal location for the future transit corridor between Armstrong Creek and Torquay–Jan Juc. It will augment residential land supply near the northern employment centre.

It is therefore considered worthy of inclusion within the Torquay – Jan Juc settlement boundary. However, any further development north of the area into the green break between Torquay–Jan Juc and Geelong should be prevented.

To ensure that the Messmate Road Future Residential Area contributes positively to the established township character and landscape significance, it is proposed that building site coverage, permeability and landscaping requirements be addressed through structure planning. Setting a two-storey height limit, for example, would ensure that this new area fits in with the preferred character of Torquay–Jan Juc.

50 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Proposal for the draft Surf Coast SPP

Proposal 2: that the Messmate Road Future Residential Area be included within a protected settlement boundary for Torquay–Jan Juc, with provisos.

The provisos are that:

• the location of the protected settlement boundary should align with the ridgeline: further technical work is needed to precisely define it

• the density and design of development should support the landscape significance and preferred township character of the area; and building site coverage, permeability and landscaping requirements should be carefully considered (for example, development should not protrude above the ridgeline)

• part of the area be designated as an urban-rural transition area and designed accordingly (for example, by providing sufficient space around dwellings for vegetation that softens the appearance of the area and by providing a vegetated urban fringe treatment).

Torquay North East Future Residential Investigation Area

Locational context

Map 8 shows the location of the Torquay North East Future Residential Investigation Area.

The area is located to the east of Horseshoe Bend Road in Torquay and close to the Torquay North Neighbourhood Activity Centre. To the east of the area are the Karaaf Wetlands, which are a coastal saline wetland system at the estuary of Thompson Creek.

The area currently forms part of the green break between Torquay–Jan Juc and the Armstrong Creek Urban Growth Area, and it is visible when viewed from Mount Duneed, looking south towards Torquay.

Planning context

The Torquay North East area is identified in Surf Coast Planning Scheme Clause 21.08 as a future residential investigation area outside the current Torquay–Jan Juc settlement boundary. The area is zoned Farming Zone.

Spatial Economics (2018) estimates the area can allow for the provision of about 760 dwellings.

Public engagement results

No comments were made specifically about the Torquay North East Future Residential Investigation Area during phase 1 or phase 2 public engagement. Comments were however made about the recent development in Torquay North and its impacts on the adjacent Karaaf Wetlands.

The Karaaf Wetlands are highly valued by the community for their biodiversity values and landscape features. Participants generally felt that the Karaaf Wetlands are already under threat from stormwater run-off, weeds and feral animals, and they wanted the untouched wilderness characteristics of the area to be maintained and protected from development.

Assessment

Table 6 is an assessment of the Torquay North East Residential Investigation Area against the assessment criteria in Table 3.

Surf Coast Settlement Background Paper 51 Department of Environment, Land, Water and Planning

Table 6: Torquay North East Future Residential Investigation Area assessmen

Criteria Comments

Environmental The Torquay North East Future Residential Investigation Area has a lower biodiversity significance value than other non-urban areas within the Surf Coast declared area. Most of the land has been cleared for farmland. An EHP (2020) found that it is highly unlikely that there would be any onsite ecological impacts as a result of future development . However, the investigation area adjoins the state and nationally significant Breamlea Flora and Fauna Reserve and the Karaaf Wetlands, which have a high biodiversity value supporting several Commonwealth- and state-listed species, and they are significant environmental features of the declared area.

Stormwater that flows into the wetlands from residential development is already an issue for the Breamlea Flora and Fauna Reserve and the Karaaf Wetlands. The increase in run-off flow to the Breamlea Flora and Fauna Reserve has changed the ecological character of the area due to an influx of freshwater into the saltwater wetland and the encroachment of freshwater plant species as a result of the existing developments within the immediate area. A further increase in stormwater run-off from any future residential development in the investigation area would have severe implications for the loss of native vegetation and critical habitat for migratory bird species (EHP 2020).

Existing residential areas in this vicinity also experience overland flooding from farmland to the north. Urban development of the Torquay North East Future Residential Investigation Area has the potential to exacerbate these problems. A comprehensive solution to overland and stormwater drainage in this area is required. EHP (2020) found that future development of the investigation was likely to be feasible provided that it could guarantee that no stormwater overflow emanates from the area and / or is discharged into the Breamlea Flora and Fauna Reserve or surrounding developments.

Other potential harms to the Karaaf Wetlands associated with development (such as increased human access, domestic animals and weed invasions) must also be carefully managed.

In summary, until a comprehensive solution is found to address the stormwater and floodwater discharge from the farming and residential areas that is harming the Karaaf Wetlands, the future development of the Torquay North East Investigation Area should not proceed, to ensure development does not exacerbate the existing situation. Landscape The land is within the regionally significant Mount Duneed Plain and Surrounds significance landscape, and is very close to the state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape of state significance, which occurs immediately to the east.

The area is also located adjacent to the Thompson Valley ridgeline that has been used to generally define the settlement boundary to the north and north-west of Torquay – Jan Juc. The ridgeline is not as well-defined in this area. If the Torquay North East Future Residential Investigation Area is included within a settlement boundary, further work will still be needed to define the acceptable extent of development in this area and how the visual impact of any urban development can be managed.

To ensure the connection of the Torquay North East residential area to the surrounding significant coastal landscape, Claire Scott Planning (2020) recommended the provision of permeable land and landscaped space between dwellings, with planting and sustaining vegetation, particularly large canopy trees. This will prevent development from encroaching into or being visible from the Thompson Valley green break.

In summary, there is now more evidence to support the importance of protecting landscape values. There is a need to ensure that in determining any land use and development proposals for the Torquay North investigation area that connection to the regionally significant Mt Duneed Plain and Surrounds landscape and state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape are addressed. This aligns with community views that the green break between Torquay – Jan Juc and the Armstrong Creek Urban Growth Area is highly valued.

52 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Criteria Comments

Aboriginal There are no known sites of Aboriginal cultural heritage significance in the investigation cultural area. However, the area adjoins Breamlea Flora and Fauna Reserve and the Karaaf heritage Wetlands, both of which are significant to the Wadawurrung. Impacts on these areas significance would need to be well-managed.

Historic There are no sites of historic heritage significance in the area. heritage and If development in the Torquay North East Investigation Area is well-designed, it can township support the preferred township character and historic heritage values of central character Torquay–Jan Juc. significance

Natural Most of the land has been cleared for farmland and is currently used as a flower farm. resources and Surf Coast Shire (2019b) considered this area well-suited to agribusiness and productive commercial farming. It also considered that the loss of arable farming land and land important rural landscapes to growing settlements could have severe consequences to significance the hinterland’s future economic potential and job creation contribution. Further work is required to determine if this area is suitable for residential development and if so, whether it would negatively impact the green break. Strategic This area is close to a potential terminal for the Armstrong Creek to Torquay Transit infrastructure Corridor. Development of the area could support the viability of this infrastructure. and built form A dam to take stormwater flows from the adjacent Dunes Estate is located on this site, significance and the water is used for the flower farm. Any redevelopment of the site would need to resolve issues of stormwater flow.

The Torquay Airport on Blackgate Road is located close to the area. It is a local airport used mainly for tourism activities including skydiving and joy flights. There is no policy direction for the airport in the Surf Coast Planning Scheme. Further work would be needed to understand the potential implications of the airport’s operation on the Torquay North East Future Residential Investigation Area, and how it might affect development.

All major trunk services (such as reticulated water, sewerage, gas and electricity) are or can be provided to Torquay–Jan Juc. Environmental The land is within a bushfire-prone area, so bushfire protection measures would need to risks be implemented as part of any development. A preliminary bushfire hazard assessment identified that development of this area is not likely to result in a net increase in risk to existing and future residents, property and community infrastructure, subject to the application of appropriate bushfire protection measures (DELWP 2020).

The adjacent Breamlea Flora and Fauna Reserve is subject to the Floodway Overlay, Land Subject to Inundation Overlay and Salinity Management Overlay, and any offsite impacts of development of the investigation area would need to be considered.

A 180 megalitre dam is located on the site of the Torquay North East Future Residential Investigation Area. It is currently being used as a retarding basin to capture stormwater flows emanating from surrounding residential development and from recycled water. In October 2020, it developed a leak that resulted in more than 100 residents being evacuated due to it being at risk of immediate collapse. The future of the dam needs to be considered as part of a comprehensive solution to address the stormwater and floodwater discharge from the farming and residential areas prior to determining the future of the Torquay North East Future Residential Investigation Area.

Surf Coast Settlement Background Paper 53 Department of Environment, Land, Water and Planning

Discussion Bellbrae and Breamlea

The Torquay North East Future Residential There are other settlements in the Surf Coast Investigation Area is identified in the Surf Coast declared area where it may be appropriate to Planning Scheme for potential greenfield designate protected settlement boundaries, where development in Torquay–Jan Juc. The area has no no greenfield growth is contemplated. These include known significant environmental, cultural heritage or Bellbrae and Breamlea. natural resource constraints. However, it abuts the Karaaf Wetlands and Breamlea Flora and Fauna Bellbrae Reserve that are sites of state and national ecological and Aboriginal cultural heritage Locational context significance. The area also adjoins the state- significant Torquay Coast, Coastal Saltmarsh and Map 9 shows the location of Bellbrae, a small Woodland landscape, and it is a part of the settlement inland of Torquay–Jan Juc between the regionally significant Mount Duneed Plain and Spring Creek Future Residential Area (which is to the Surrounds landscape. west) and the nationally heritage-listed Great Ocean Road (which is to the south). It is set within a canopy Based on the technical work undertaken, developing of trees surrounded by the rural landscape of the this area has the potential to harm the Karaaf Surf Coast hinterland and is located in a state- Wetlands and Breamlea Flora and Fauna Reserve. significant landscape. The Spring Creek Valley green break separates Bellbrae from Torquay–Jan Juc. The determination of whether the area is suitable for development is subject to guaranteeing that no Planning context stormwater overflow will emanate from the area and/ or will be discharged into the Breamlea Flora and The Township Zone applies to all private land in the Fauna Reserve or surrounding developments. settlement. It seeks to ensure development respects Further work is required to determine if such a the neighbourhood character of the area. guarantee is technically feasible. Until this work is undertaken, there should be no decision made about There are large areas of native vegetation at the including the investigation area within the urban southern edge of the settlement with a Vegetation extent of Torquay. Protection Overlay (VPO1). This means areas of significant vegetation need to be protected and the Proposal for the draft Surf Coast SPP loss of vegetation minimised as part of any development. A Bushfire Management Overlay also Proposal 3: that the Torquay North East Future applies to a portion of the land on the southern edge Residential Investigation Area be identified as a of the settlement, meaning that bushfire protection future residential investigation area outside of a measures will need to be implemented to ensure protected settlement boundary for Torquay–Jan development is only permitted where the risk to life Juc. and property from a bushfire can be reduced to an acceptable level.

A Design and Development Overlay (DDO24) is also applied to the village. Development in Bellbrae must achieve the relevant design objectives outlined in DDO24.

Public engagement results

There is strong community sentiment for Bellbrae to remain a village with a clear green break separating it from Torquay–Jan Juc. A few participants in phases 1 and 2 engagement said that low-density residential development would be an appropriate use for the green break.

54 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Map 9: Bellbrae

Surf Coast Settlement Background Paper 55 Department of Environment, Land, Water and Planning

Discussion

Bellbrae is not identified as a location for increased dwelling density or expansion. Surf Coast Planning Scheme Clause 21.14 provides for limited growth within the existing settlement boundary to preserve the village’s rural and bush historical character.

Bellbrae forms part of the state-significant Torquay Coast, Coastal Saltmarsh and Woodland landscape that is highly valued by the community. Further expansion of the village would result in the loss of the green break, resulting in the coalescing of Torquay– Jan Juc and Bellbrae.

Claire Scott Planning (2020) recommended strengthening existing planning provisions for Bellbrae by:

• retaining the village within the current Township Zone

• reviewing the existing planning provisions about the achievement of neighbourhood character objectives, landscaping, building site coverage and permeability requirements

• retaining the green break from Bellbrae to Torquay–Jan Juc and also to the Addiscott Road Estate.

Proposal for the draft Surf Coast SPP

Proposal 4: That a protected settlement boundary be applied to Bellbrae that aligns with the existing settlement boundary.

Proposed implementation action

Action 1: That after approval of the Surf Coast SPP, the existing planning provisions in Bellbrae relating to neighbourhood character objectives, landscaping, minimum street setback, building heights, building site coverage and permeability requirements be reviewed.

Breamlea

Locational context

Map 10 shows Breamlea, which is a secluded coastal hamlet of about 100 houses located in the coastal dunes to the east of Torquay–Jan Juc, within the City of Greater Geelong. It is adjacent to the saltmarsh and estuarine environment of Thompson Creek, which has significant environmental values and is a primary feeding ground for the threatened Orange-bellied parrot.

Planning context

The Township Zone is applied to all private land in the hamlet, and a Bushfire Management Overlay, an Environmental Significance Overlay (ESO1) and a Design and Development Overlay (DDO22) apply to land in this area. This means development must be compatible with identified environmental values and design and development objectives, and bushfire protection measures must be implemented.

Public engagement results

Participants during phase 1 and phase 2 public engagement valued the coastal, hamlet nature of Breamlea, with any expansion seen to be a threat. Participants wanted the untouched wilderness characteristics of the adjacent Breamlea Flora and Fauna Reserve and Karaaf Wetlands to be maintained and protected from development.

56 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning Map 10: Breamlea

Surf Coast Settlement Background Paper 57 Department of Environment, Land, Water and Planning

Discussion Proposal for the draft Surf Coast SPP

The Greater Geelong Planning Scheme does not Proposal 5: That a protected settlement boundary identify Breamlea for increased dwelling density or be applied to Breamlea that aligns with the existing redevelopment. Clause 21.06-2 includes a strategy to settlement boundary. prevent further subdivision and medium-density housing in Breamlea. Proposed implementation action

Breamlea is a unique settlement located adjacent to Action 2: That after approval of the Surf Coast SPP, Breamlea Flora and Fauna Reserve and Karaaf the existing planning provisions in Breamlea relating Wetlands, which are sites of state and national to neighbourhood character objectives, landscaping, ecological and Aboriginal cultural heritage building heights, building site coverage and significance. permeability requirements be reviewed.

It forms part of the state-significant Torquay Coast, Residential areas outside existing settlement Coastal Saltmarsh and Woodland landscape that is highly valued by the community. Further expansion boundaries of the hamlet would have a detrimental impact on There are three areas of large residential lots located the fragile ecosystem surrounding the settlement. outside the settlements of Torquay–Jan Juc, Bellbrae, and Breamlea: Mount Duneed, Connewarre Claire Scott Planning (2020) recommended and Addiscott Road Estate. strengthening existing planning provisions for Breamlea by: Surf Coast Planning Scheme Clause 21.07-2 states that limited opportunities for low-density residential • preventing any additional development within the development will be provided on the edges of dunal landscape or beyond the extent of the Torquay–Jan Juc, and it will be prevented from current Township Zone sprawling beyond the settlement boundary. The • requiring any new development that occurs in clause also directs land zoned for rural residential Breamlea to not be visible from Breamlea Beach or and rural living land uses and subdivision away from from the adjacent primary dune landscapes of high significance to areas identified in Torquay–Jan Juc, Winchelsea and Moriac. • requiring new or replacement development in Breamlea to be nestled into the coastal vegetation, Mount Duneed and Connewarre with vegetation removal minimised Locational context • reviewing the existing planning provisions about the achievement of neighbourhood character Map 11 shows the Mount Duneed and Connewarre objectives, landscaping, building heights, building settlements, which are located within the green site coverage and permeability requirements break between Geelong — the Armstrong Creek Urban Growth Area — and Torquay in the regionally • including design standards in the planning scheme significant Mount Duneed Plain and Surrounds to minimise the visibility of structures in the coastal landscape. environment; the inclusion of siting and design standards as recommended by the review is also The Mount Duneed area consists of about 80 large, warranted. low-density residential lots in two semi-circular subdivision patterns either side of Horseshoe Bend Road to the south of Mount Duneed Road. The Connewarre low-density residential area is located at the north-eastern edge of the declared area, and it is centred on Bluestone School Road immediately to the south of Mount Duneed Road and Barwon Heads Road. It comprises about 40 lots laid out in an informal, gridded arrangement. Both the Mount Duneed and Connewarre areas have restricted land capability in terms of infrastructure servicing, with the on-site treatment of waste present in both areas.

58 Surf Coast Settlement Background Paper Map 11: Mount Duneed and Connewarre Department of Environment, Land, Water and Planning

Surf Coast Settlement Background Paper 59 Department of Environment, Land, Water and Planning

Planning context

The Low Density Residential Zone is applied to all residential land in these settlements. A small portion of land on the southern edge of Connewarre is impacted by the Salinity Management Overlay, which seeks to reduce and manage the impacts of salinity on the land. No other overlays impact these settlements.

Public engagement results

No comments were made specifically about the Mount Duneed and Connewarre settlement areas during phase 1 and phase 2 public engagement. Comments were however made about the value of the green break between Geelong and Torquay–Jan Juc and the view from Mount Duneed over the rural hinterland towards Torquay–Jan Juc, and the need to protect this area from urban encroachment.

Discussion

The Mount Duneed and Connewarre areas are not identified as locations for future growth in current strategies. These areas also have restricted opportunities for additional housing capacity due to infrastructure servicing requirements.

The Surf Coast Planning Scheme Clause 21.02-3 requires a minimum lot size of 1.0 ha through the Low Density Residential Zone. It also requires green breaks between settlements (particularly Geelong and Torquay) and the coastal settlements to be maintained.

Mount Duneed and Connewarre form part of the regionally significant Mount Duneed Plain and Surrounds landscape. Claire Scott Planning (2020) recommended that:

• the existing subdivision pattern of these areas be retained

• native vegetation in the Mount Duneed Road, Bluestone School Road and Breamlea Road corridors be protected and increased, to screen the edge of residential development in these areas from view.

Given the importance of protecting the green break between Torquay and Armstrong Creek Urban Growth Area, there should be no development of additional new, low-density or rural living areas outside of the existing settlements of Mount Duneed and Connewarre.

Proposal for the draft Surf Coast SPP

Proposal 6: That settlement boundaries that align with the current Low Density Residential Zone be applied to Mount Duneed and Connewarre.

Addiscott Road Estate

Locational context

Map 12 shows the area known as Addiscott Road Estate, which is located in Torquay–Jan Juc’s hinterland, inland from Bells Beach and to the east of the nationally heritage-listed Great Ocean Road.

It comprises large properties mostly single dwellings, sited in vegetation and accessed via long driveways, including several tourist accommodation providers. Most dwellings are hidden by vegetation, although some dwellings are highly visible from the Bells Beach coastal strip. Some parts of this area are located in the nationally significant Bells Beach to Point Addis landscape.

60 Surf Coast Settlement Background Paper Map 12: Addiscott Road Estate area Department of Environment, Land, Water and Planning

Surf Coast Settlement Background Paper 61 Department of Environment, Land, Water and Planning

Planning context Claire Scott Planning (2020) found that it was important to retain the sense of isolation including The land is generally zoned Low Density Residential the separation from Jan Juc that is achieved by Zone or Rural Conservation Zone. It is subject to a dwellings being concealed by vegetation and at Bushfire Management Overlay and a Vegetation lower densities. This area is most at risk of additional Protection Overlay (VPO1). This requires areas of development and change, as the Low Density significant vegetation to be protected and the Residential Zone is very limited in its ability to protect further loss of vegetation minimised as part of any and manage landscape character and significance, development. Bushfire protection measures also development and vegetation protection in this area. need to be implemented. Claire Scott Planning (2020) recommended that: Public engagement results • this area be retained as an area of minimal No comments were made specifically about the change, with no new subdivision as well as scrutiny Addiscott Road Estate area during phase 1 and of any new development phase 2 public engagement. Bells Beach and its • any new development be immersed into the surrounds were however identified as an area of landscape, with significant front setbacks and significant value, with important Aboriginal cultural screening vegetation heritage, surfing culture, coastal geology and fossil heritage values. Participants wanted the views • any new development be designed to minimise its across this area and the natural landscapes to be visibility including by setbacks and by using darker maintained and protected from any further external materials development. • the visual green break between this area and Jan Discussion Juc be protected

This area is classified as having a high bushfire risk • the existing Low Density Residential Zone area be and Clause 21.07-2 of the Surf Coast Planning rezoned to Rural Conservation Zone Scheme restricts further growth or subdivision in this area. It states that ‘this area is an area of high • a review of the Rural Conservation Zone schedule landscape value which would not otherwise have be undertaken in relation to conservation values, been subdivided. It contains significant native to ensure it supports the landscape assessment vegetation and no further subdivision will be review’s findings supported.’ • a review of the Significant Landscape Overlay The majority of this area forms part of the state- schedule be undertaken, to ensure it supports the significant Torquay Coast, Coastal Saltmarsh and landscape assessment review’s findings. Woodland landscape. Properties between Hurst In light of the existing policy direction, environmental Road and Point Addis Road, and some properties to constraints and the area’s location within the north and/or south of Jarosite and Bones Roads, landscapes of state and national significance, no at the eastern, coastal end of Bells Beach, are expansion, further growth nor subdivision of this located in the nationally significant Bells Beach to area should occur. Point Addis landscape. The Addiscott Road Estate area is close to the nationally heritage-listed Great To protect the environmental, landscape and cultural Ocean Road and Bells Beach heritage sites that are heritage values in this area, the Addiscott Road highly valued by the community and places of Estate area should be managed as a green break, environmental and Aboriginal cultural heritage with no new development or subdivision. significance.

Clause 21.08-3 seeks to minimise the visual appearance of development on surrounding land as viewed from the Bells Beach Recreation Reserve, to preserve the reserve’s heritage values and the sense of cultural experience afforded by this stretch of coastline. It discourages new subdivision and development within this vista.

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Proposal for the draft Surf Coast SPP

Proposal 7: The Addiscott Road Estate area be managed as a green break area, with no new residential development or subdivision.

Proposed implementation action

Action 3: That the land zoned Low Density Residential Zone within the Addiscott Road Estate area be rezoned to an appropriate rural zone, with no further residential growth or subdivision.

Armstrong Creek Urban Growth Area

The northern boundary of the declared area abuts the Armstrong Creek Urban Growth Area in Geelong. A protected settlement boundary is recommended for this area, to ensure greater protection of the green break between Geelong and Torquay–Jan Juc, which is in the regionally significant Mount Duneed Plain and Surrounds landscape.

The resolution of this settlement boundary is subject to the completion of local strategic planning work and public consultation, which will be led by the Greater Geelong City Council in collaboration with DELWP, other relevant agencies and the Wadawurrung. This work will occur once Amendment C395 – Settlement Strategy and the Northern and Western Geelong Growth Areas Framework Plan have been determined. Once completed, the Surf Coast SPP will be updated to include the settlement boundary.

Proposed implementation action

Action 4: That a protected settlement boundary be established for the Armstrong Creek Urban Growth Area and brought into the Surf Coast SPP.

Surf Coast Settlement Background Paper 63 Department of Environment, Land, Water and Planning

Part C: Managing settlement areas

Managing urban-rural interfaces, transition areas and ridgelines

Managing urban-rural interfaces

Rural land that abuts settlements and provides for a diverse range of non-settlement- related land uses including agricultural, extractive resources and strategic infrastructure (such as airports, and water treatment facilities) is under pressure from development, and there is a need to provide greater certainty to communities about its future. Claire Scott Planning (2019) noted that development at the urban-rural interface of settlements has the potential to greatly change the township character and the surrounding landscape significance of Torquay–Jan Juc.

State planning policy includes strategies to manage the interface between urban and rural areas, including:

• Clause 11.01-1R Settlement - Geelong G21: Protect critical agricultural land by directing growth to towns

• Clause 11.03-3S Peri-urban areas: Establish growth boundaries for peri-urban towns to avoid urban sprawl and protect agricultural land and environmental assets

• Clause 11.03-4S Coastal settlement: Avoid linear urban sprawl along the coastal edge and ribbon development in rural landscapes and protect areas between settlements for non-urban use

• Clause 14.01-1S Protection of agricultural land: Protect productive farmland that is of strategic significance in the local or regional context and limit new housing development in rural areas by:

– directing housing growth into existing settlements

– discouraging development of isolated small lots in the rural zones from use for dwellings or other incompatible uses

– encouraging consolidation of existing isolated small lots in rural zones

• Clause 15.01-6S Design for rural areas: Ensure that the siting, scale and appearance of development protects and enhances rural character and Protect the visual amenity of valued rural landscapes and character areas along township approaches and sensitive tourist routes by ensuring new development is sympathetically located.

Clause 21.08-2 of the Surf Coast Planning Scheme seeks to protect existing areas in a Low Density Residential Zone to provide a transition from Torquay–Jan Juc to surrounding rural land. Greater Geelong Planning Scheme Clause 21.11 recognises the importance of maintaining a rural break between Armstrong Creek Urban Growth Area and the Surf Coast Shire. However, these policies do not provide specific directions for built form and design approaches that can achieve a successful urban-rural interface for greenfield areas or existing residential areas on the periphery of settlements.

Land speculation is a common issue for settlements in the peri-urban areas of Melbourne and regional cities. There is a need to strengthen, carefully, how settlements in these areas can transition to rural areas to minimise impacts on their landscape, cultural heritage and environmental values.

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Transition areas Proposal for the draft Surf Coast SPP

To ensure the unique values and distinct attributes Proposal 8: That generous urban-rural transition of the Surf Coast declared area are preserved, the areas be required within the protected settlement interface of residential areas with surrounding rural boundaries for future greenfield development areas land needs to be better managed. within the declared area and where there is an intensification of existing low-density residential Claire Scott Planning (2020) identified that areas on the edges of settlements. development at the edges of settlements has the potential to significantly change the character of their wider landscape and impact the landscape’s Hilltops and ridgelines significance. Settlements and their outskirts are also Hilltops and ridgelines are important for establishing often under the most development pressure and a strong relationship between settlement areas and facing change and potential threats to character. the landscape.

Claire Scott Planning (2020) also assessed the Surf Coast Planning Scheme Clause 21.08-3 aims to success of different edge treatments of Torquay– ensure the layouts of developments respond to the Jan Juc. The low-density residential area around area’s natural features including by applying lower Torquay Heights with its retained vegetation, large densities for visually prominent sites. lots, straight roads and minimal visibility of dwellings was identified as a relatively successful transition to Clause 21.08-6 also notes the need to establish the the farmland further north, while the agricultural exact settlement boundary on the northern ridgeline gardens to the north of Pintail Drive provide a of Torquay–Jan Juc when development plans are different type of clear and contrasting township prepared for the relevant area, to avoid any visual edge. intrusion of development north of the ridgeline.

Areas on the edge of Torquay–Jan Juc must be Greater Geelong Planning Scheme Clause 21.11 provided with a successful interface with recognises the need to protect the visual sensitivity surrounding rural areas. Within the Surf Coast along the Mount Duneed ridgeline from urban declared area, such areas can mark a change in development. development form and are often low-density. In addition to these current policies, the landscape The existing low-density residential areas located on assessment review highlighted the negative visual the fringe of Torquay–Jan Juc allow for a greater impact that results when a lack of vegetation and provision of vegetation cover, compared to the building bulk looks incongruous with the highly remainder of the settlement area. These areas valued coastal landscape setting. provide a more effective urban-rural transition than areas where residential development at standard This impact is worse if development protrudes above densities is established to the settlement boundary hilltops and ridgelines, which are themselves edge. prominent landscape features. Claire Scott Planning (2020) states it is important that the natural Consideration needs to be given to the edge contours of and vegetation on hilltops and ridges in treatment of any future settlement area and low- Torquay–Jan Juc remain visible and that density and ecologically sustainable development development does not protrude above them. A area, and where intensification of existing low- balance between vegetation and built form, density residential areas occurs on the edge of the including the use of darker external building settlement. materials, tempers the visibility of settlement areas from a distance. Provision of edge treatments could include low- density residential development with additional The established areas of Jan Juc provide good space around dwellings for vegetation, smaller examples of where a visual balance has been building footprints with substantial vegetation or achieved between vegetation and built form in an provision of a generous vegetated buffer to shield undulating landscape. residential or other types of development on the edges of the settlement. Materials and finishes that To protect the unique nature of Torquay–Jan Juc as temper visibility (such as darker materials and a coastal settlement within a state-significant materials that weather naturally) should also be landscape, additional built form controls are used. In this paper, areas needing such edge required to protect sensitive areas and landscapes, treatments are referred to as ‘urban-rural transition particularly around urban-rural interfaces, hilltops, areas’. ridgelines and transition areas.

Urban-rural transition areas must be generous, and Including vegetation requirements in current and further work is needed to define the appropriate any new planning controls should also be extent of such areas. considered.

Surf Coast Settlement Background Paper 65 Department of Environment, Land, Water and Planning

Proposal for the draft Surf Coast SPP

Proposal 9: That new development in greenfield areas and in areas where there is an intensification of existing low-density residential areas on the settlement’s edges sits below hilltops and ridgelines, with skyline views dominated by natural topographic formations and canopy trees. Managing built form within Torquay– Jan Juc

Its unique values and distinctive attributes make the Surf Coast a desirable place to live, work and visit. The sustainable management of growth in Torquay–Jan Juc means exploring opportunities for urban consolidation ahead of developing greenfield areas. With the growing demand for residential and tourism-related development in the Surf Coast declared area, there is a need for greater certainty about how development investment opportunities within existing settlements can be facilitated, while ensuring their unique identity and character within their significant landscape settings can be protected and enhanced for current and future generations.

This part of the paper identifies locations with opportunities for urban consolidation. It also sets out the rationale for defining built form controls for commercial and residential areas to better protect and enhance places of important heritage, landscape and environmental value and the preferred character of settlements. ‘Built form’ refers to buildings and structures and includes building heights, building site coverage, site permeability, landscaping, external materials, details and finishes.

A combination of planning scheme provisions (such as local policies, zones, overlays and particular provisions) will be needed to ensure infill development is directed to preferred areas and is in keeping with the preferred character of areas.

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Coastal character

Phase 1 and 2 public engagement found a strong desire to maintain the township character of Torquay–Jan Juc. Many participants mentioned the coastal character, relaxed feel and connection to the landscape as highly valued aspects of Torquay–Jan Juc. Many people were concerned about the metropolitan, urban nature of new development that they felt was incongruous with the coastal character of Torquay–Jan Juc.

The findings of the landscape assessment review show that new residential developments in Torquay– Jan Juc generally have large building footprints at the expense of lawns, garden areas and permeable, plantable spaces. Claire Scott Planning (2020) noted the negative impact that results when insufficient vegetation and the visual bulk of buildings in developments appear incongruous with the settlement’s coastal landscape setting. Many new developments on infill sites and in the newer residential areas lack significant vegetation, particularly canopy trees.

The findings of the township character assessment indicated that the greatest threats to the township character of Torquay–Jan Juc were the intrusion of residential building styles that are more metropolitan or suburban in character and the loss of private, coastal gardens and established trees.

The prevalent vegetation of Torquay–Jan Juc is an important contributor to township character and to how it relates to its surrounding landscape. Claire Scott Planning (2020) recommended including vegetation, landscaping and permeability requirements as a variation to the schedules of the Residential and Township zones, to ensure a more successful settlement-to-landscape relationship. Ethos Urban (2020) also recommended including private open space provisions in the General Residential Zone and Neighbourhood Residential Zone schedules, so they apply to developments that do not trigger the relevant Design and Development Overlay.

Surf Coast Settlement Background Paper 67 Department of Environment, Land, Water and Planning

Coastal character statement for Torquay–Jan Juc

The following statement of coastal character Substantial residential change areas describes the preferred outcomes for development in Torquay–Jan Juc. New development at higher densities is respectful of older-style beach houses. Torquay–Jan Juc retains a strong connection with its coastal and rural landscape setting, through the New development is sited in accordance with the dominance of vegetation, the visibility of the natural predominant pattern of front setbacks in the street, contours of the land and views of the coast and the to allow for space for retaining or planting canopy high-quality design of new developments. trees and shrubs that soften the built form and contribute to the spaciousness and leafiness of Views from streets and other public places are ones streetscapes. of native vegetation and exotic canopy trees. Further plantings of native vegetation (especially next to Incremental residential change areas roads, along waterways, in reserves and along the coastline) increase the coastal character. New development provides housing diversity whilst respecting the coastal character of the area with The natural contours and vegetation of the hilltops low-rise built form set in well-landscaped gardens. and ridgelines surrounding the settlement remain visible. In new development areas, hilltops and Generous boundary setbacks help minimise visual ridgelines are vegetated, and new development does bulk, protect existing vegetation and allow space for not protrude above them. Views of the coast from additional landscaping including canopy trees. the nationally heritage-listed Great Ocean Road are Materials and finishes reduce the visibility of new maintained. development so that the surrounding vegetation is the dominant feature. New development provides high-quality design responses, which consider the landscape Minimal residential change areas significance, environment and biodiversity values, Aboriginal cultural heritage and historic heritage The coastal character of these areas is protected, values of the area. This means using architectural and new development has a low-rise built form set in styles, environmentally sustainable designs and well-landscaped gardens so that the surrounding materials and finishes that contribute towards the vegetation is the dominant feature. Generous existing sense of place. boundary setbacks help minimise visual bulk, protect existing vegetation and allow space for additional Generous transition areas at the urban-rural landscaping including canopy trees. Materials and interface, within the protected settlement boundary, finishes reduce the visibility of new development. provide a successful transition to the surrounding green breaks. The visibility of the settlement from the Future settlement and low-density, green breaks is minimised. This is achieved through the use of reduced dwelling densities, smaller ecologically sustainable development areas building footprints and substantial landscaping or The coastal character of Torquay–Jan Juc will generous vegetated buffers at the urban-rural continue to be represented in these areas with interface. Materials and finishes that temper visibility low-rise buildings set within well-landscaped (such as darker materials and materials that gardens that reflect the surrounding landscape weather naturally) are used significance.

Activity centres There are generous urban-rural transition areas within the settlement boundary, which provide a soft New development within activity centres is of edge to urban development as it meets the outstanding built form and design, and uses colours, surrounding green breaks, to minimise the visibility materials, architectural features and landscaping and to better manage the environmental and that promote and celebrate the surfing, beach and landscape impacts of the settlement. New coastal image of Torquay–Jan Juc. development provides screening vegetation and smaller building footprints, and it uses materials and Mixed-use development with shop-top apartments finishes that temper visibility (such as darker and offices is supported at a scale that is in keeping materials and/or materials that weather naturally). with the role and character of the activity centre.

Landscaping is also provided in public places to support the dominance of vegetation.

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Proposal for the draft Surf Coast SPP Vibrant, interactive activity centres are essential to provide for a growing population and increasing Proposal 10: That that the coastal character visitor numbers to Torquay–Jan Juc. New statement for Torquay–Jan Juc be included in the development opportunities are needed to help Surf Coast SPP. stimulate investment, provide jobs and maintain and grow a healthy local economy. However, new Proposed implementation action development must be balanced with the need to protect the values that make the declared area an Action 5: That once the Surf Coast SPP is approved, attractive place to live, work and visit. existing planning provisions be updated to include vegetation, landscaping, permeability and open The demand for development in these activity space requirements to give effect to the SPP. centres is expected to increase with population growth and with the establishment of a settlement boundary for Torquay–Jan Juc. What constitutes an Activity centres appropriate building height in the commercial areas Torquay–Jan Juc comprises a hierarchy of activity of the Torquay Town Centre and the Bell Street centres that provide a range of commercial and Neighbourhood Activity Centre is a contentious community services. The main activity centres in community issue, because these areas directly Torquay–Jan Juc are the Torquay Town Centre, the interface with the foreshore and provide services to Bell Street and Torquay North neighbourhood the local community and tourists. activity centres, the Jan Juc Activity Centre and the Clause 21.08-4 of the Surf Coast Planning Scheme Surf City Precinct. Before the Surf Coast Shire was provides for a hierarchy of activity centres, which established in 1994, Torquay was part of two Map 13 shows. These activity centres ensure there different municipalities — the Shire of Barrabool and are sufficient retail and commercial facilities for the the City of South Barwon — with the Surf Coast growing population and visitors. The clause also Highway separating the two. This has contributed in encourages mixed-use development in activity part to the fragmentation of Torquay’s commercial centres, with shop-top apartments and offices at an centres. intensity and scale that is in keeping with the scale and character of the centre.

Map 13: Torquay–Jan Juc activity centres

Source: DELWP, 2020c — Map 3 to Clause 21.08

Surf Coast Settlement Background Paper 69 Department of Environment, Land, Water and Planning

Torquay Town Centre

The Torquay Town Centre is the major activity centre in Torquay–Jan Juc, and Clause 21.08-4 of the Surf Coast Planning Scheme seeks to consolidate and strengthen this role. It comprises three precincts:

• Precinct 1 – Central Retail Core

• Precinct 2 – Bristol Road (West)

• Precinct 3 – The Foreshore (Schedule 6 to Clause 43.02).

Map 14 shows the Torquay Town Centre Precinct Plan.

Map 14: Torquay Town Centre Precinct Plan

Source: DELWP, 2020c — Map 4 to Clause 21.08

70 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Precincts 1 and 2 are zoned Commercial 1 Zone, which aims to create vibrant, mixed-use commercial centres for retail, office, business, entertainment and community uses. It also aims to provide for residential uses at densities complementary to the role and scale of the commercial centre.

Precinct 3 is zoned Special Use Zone 5, which aims to encourage tourism development. A Design and Development Overlay (DDO6) applies to the Torquay Town Centre, which sets desired — not mandatory — building heights of 8 m (two storeys) for Precinct 1, 9 m for Precinct 2 and 10.5 m (three storeys) for Precinct 3. It also includes controls for siting and landscaping. Several four-storey developments have been approved in the past, including at 1 Zeally Bay Road for apartments currently under construction.

The Torquay Town Centre Urban Design Framework (UDF) prepared by Hansen Partnership for Surf Coast Shire Council aimed to provide a clear vision for the Torquay Town Centre. It provided design principles (including recommendations about built form, response to the coastal character, access and the public realm) to guide future development. It did not include the Bell Street precinct. Hansen Partnership found the town centre and the precinct have poor pedestrian connectivity and wayfinding, and further investment is needed to consolidate the town centre and improve its coherence, functionality and amenity. To encourage redevelopment and increase available floorspace for a mix of uses, the UDF included a recommendation to retain the prevailing two-to- three-storey form generally along street frontages and The Esplanade. Development would be of up to four storeys across most of the town centre, with taller building heights of up to five storeys in several larger sites where appropriate transitions to street edges could be established and long-range views could be maintained.

In December 2017, Surf Coast Shire Council adopted the Torquay Town Centre UDF, subject to changes to building heights: it set a mandatory maximum building height of 10.5 m (three storeys) across the Torquay Town Centre. The adopted UDF has yet to be translated into the Surf Coast Planning Scheme. A planning scheme amendment to implement the adopted UDF is currently on hold, pending the outcome of the Surf Coast SPP.

Ethos Urban (2020) found that retaining the prevailing two-to-three-storey scale when viewed from street level was a desirable and important component of the UDF vision, because it responded to the coastal setting of Torquay. It found the locations proposed in the UDF to allow for buildings up to four storeys were acceptable, because they would not overshadow the Gilbert Street spine, would respect residential interfaces and would help activate the town centre and stimulate investment. It found that five-storey development was not acceptable, as this would result in a notable increase in height above the prevailing built form and would be highly prominent within the low-rise coastal setting.

Proposed implementation action

Action 6: Once the Surf Coast SPP is approved, current height controls be amended to allow up to four storeys in appropriate locations in the town centre: new development must not dominate the coastal reserve and must ensure the foreshore area is protected.

Surf Coast Settlement Background Paper 71 Department of Environment, Land, Water and Planning

Bell Street Neighbourhood Activity Surf City and Surf Coast Gateway Centre precincts

The Bell Street Neighbourhood Activity Centre is a The Surf City Precinct is located on the Surf Coast neighbourhood activity centre that has a tourist and Highway at the northern entrance to Torquay–Jan entertainment focus while also providing some Juc, and it is recognised as the gateway to the Surf services to locals. Surf Coast Planning Scheme Coast and the nationally heritage-listed Great Clause 21.08-4 identifies it as a surfing and tourist Ocean Road. It is the hub of the surfing industry and activity precinct. The activity centre is described by surf retailing and is a vibrant area — both night and Ethos Urban (2020) as having a low-scale, fine-grain day — that provides entertainment, shopping, dining built form characterised by lightweight materials and community facilities. The buildings in this that create a sense of vitality and human interaction. precinct (including Rip Curl Torquay) are distinctive Most development in the activity centre is one to two and contribute to the surfing identity and character storeys, although there are several developments of of Torquay. This precinct also contains civic and three storeys. community uses including a recreation centre and library. The Bell Street Neighbourhood Activity Centre is zoned Commercial 1 Zone. A Design and The Surf Coast Gateway Precinct is the area Development Overlay (DDO2) also applies to the immediately to the north of the Surf City Precinct. It activity centre. It requires building heights to be currently comprises retail and fast food businesses, consistent with the surrounding streetscape residential uses and a large vacant block. character, and it outlines design objectives for buildings to reflect the beach and surfing culture Zoned Special Use Zone (SUZ5), the Surf City intrinsic to Torquay. It does not specify a preferred Precinct and the Surf Coast Gateway Precinct are building height. DDO2 also aims to strengthen the nominated as Torquay tourism development identity of the activity centre as an entertainment precincts, in which diverse forms of medium-density precinct, emphasising its links with adjacent tourism tourist accommodation, tourist activities and accommodation and the surf beaches. An urban attractions and tourism-related retailing are design framework or similar design guidance has not encouraged. The area covered by SUZ5 contains been prepared for this area. bespoke land use and built form provisions that support tourism uses and development. A Design Ethos Urban (2020) also found that due to the and Development Overlay (DDO7) also applies to this neighbourhood status of the centre and its area, which sets out a built form vision for each interfaces with sensitive coastal and residential precinct that includes variable, discretionary height areas and the existing building heights, the centre provisions. These allow for buildings of up to 12 m in could accommodate buildings up to a maximum of height and designated nodes for higher buildings of three storeys. up to 16 m (four storeys). The area around Baines Crescent immediately adjacent to the Surf City Given the above, it may be appropriate to retain the Precinct is zoned Industrial 3, with a Design and existing zoning and apply a mandatory building Development Overlay (DDO5) specifying a desired height of three storeys. Undertaking an urban design building height of 8 m. framework or similar design guidance for the Bell Street Neighbourhood Activity Centre should also be Clause 21.08-4 aims to reinforce the Surf City considered. Precinct’s tourism retailing role and to encourage activities that promote the precinct’s surfing culture. The activity centre is adjacent to tourist SUZ5 also aims to ensure the Surf City and Surf accommodation including the Torquay Foreshore Coast Gateway precincts are not dominated by Caravan Park and is close to the RACV Torquay restaurants, cafes and take-away food premises. Resort, so opportunities for further tourist accommodation, facilities and infrastructure in the The Surf Coast Shire is currently preparing a Bell Street Neighbourhood Activity Centre should be Torquay–Jan Juc Employment Land Strategy, which explored. Any new development should meet the is considering the role of centres in Torquay. While built form requirements, to protect the existing the changing nature of the surf retail industry may character of the area and respect the surrounding lead to changing uses in this area (including Baines residential areas. Crescent), it should over time retain a tourism focus, given its highly prominent location. Proposed implementation action Given the identified need for the provision of Action 7: That once the Surf Coast SPP is approved, a additional visitor accommodation and infrastructure mandatory maximum building height of three in Torquay–Jan Juc, there is an opportunity to build storeys be applied to the Bell Street Neighbourhood on the designation of this area as a tourism Activity Centre. development precinct with new visitor-related and commercial development.

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Proposed implementation actions

Action 8: That to ensure new development is in keeping with the vision for the precincts, the existing planning controls for the Surf City and Surf Coast Gateway precincts be retained.

Action 9: That opportunities for larger-scale tourism infrastructure within the Surf Coast Gateway Precinct be investigated.

Jan Juc Activity Centre

The Jan Juc Activity Centre is a small centre serving the local population, and it is in a Commercial 1 Zone. It comprises low-scale development of mostly one-storey buildings located around an at-grade carpark. There is a multi-storey development of up to three storeys at the corner of Ocean Boulevard and Princes Terrace. There are no built form controls (including building heights) currently applying to the centre.

The Ethos Urban (2020) township character assessment findings indicate that the construction of additional multi-storey commercial buildings here would threaten the significant landscape character and views from Bird Rock Lookout.

Proposed implementation action

Action 10: That once the Surf Coast SPP is approved, a mandatory maximum two-storey building height, consistent with the surrounding residential area, be applied to the Jan Juc Activity Centre.

Torquay North Neighbourhood Activity Centre and Torquay Community and Civic Precinct

The Torquay North Neighbourhood Activity Centre and the Torquay Community and Civic Precinct are part of the Torquay North Growth Area, a residential growth area.

The residential growth area is zoned General Residential Zone, with a Design and Development Overlay (DDO1) applied that sets a preferred building height of 7.5 m. Most of the residential growth area is fully developed. Quay 2 is currently under construction on the south side of Merrijig Drive, and the Stretton Estate is the last undeveloped land on South Beach Road. About 5,700 residents will be accommodated in the Torquay North Growth Area once fully developed.

The Torquay North Neighbourhood Activity Centre is zoned Commercial 1 Zone, and it provides shopping and commercial services to the local community. A Design and Development Overlay (DDO23) applies a preferred height of 8 m with provision for a gateway-feature building with a maximum height of 10.5 m. Ethos Urban (2020) found the existing controls to be adequate, and it did not recommend any changes.

There is an area several blocks to the west of the Torquay North Neighbourhood Activity Centre with a cluster of community and civic facilities. These facilities include the Surf Coast Shire municipal offices, a sporting precinct (with a new basketball stadium currently under construction), a secondary school, the Kurrambee Myaring Community Centre (comprising kindergarten, meetings rooms and a multi-purpose building) and the Grant Pavilion community hub. This area is zoned Public Park and Recreation Zone and Public Use Zone, with some facilities also in the General Residential Zone.

The Sustainable Futures Plan Torquay–Jan Juc 2040 identified the Torquay North area as the location for the proposed Armstrong Creek to Torquay Transit Corridor, which includes the Torquay North Growth Area, the Messmate Road Future Residential Area and the Torquay North East Future Residential Investigation Area. The development of a transit corridor terminal close to this precinct would provide opportunities to co-locate other community facilities and infrastructure.

The Torquay North Neighbourhood Activity Centre and Torquay Community and Civic Precinct has recently been developed. An opportunity exists to capitalise on the location of any future transit corridor terminal in the broader Torquay North area with the co- location of other community facilities and infrastructure.

Surf Coast Settlement Background Paper 73 Department of Environment, Land, Water and Planning

Proposed implementation actions

Action 11: That the existing planning controls be retained for the Torquay North Neighbourhood Activity Centre and Torquay Community and Civic Precinct.

Action 12: That opportunities be investigated for community facilities to be co-located with a future Armstrong Creek to Torquay Transit Corridor terminal.

Existing residential areas

Map 15 shows the Torquay–Jan Juc Residential Development Framework, which comprises a mix of residential areas of different character types. They are mostly zoned General Residential Zone. There are pockets of Low Density Residential Zone and an area of Comprehensive Development Zone. Several Design and Development Overlays apply across Torquay–Jan Juc, which are explained below.

Clause 22.09-3 of the Surf Coast Planning Scheme identifies locations where different levels of housing growth and change are encouraged, and it provides policy guidance about how the design of developments should meet neighbourhood character and housing objectives.

Map 15: Torquay–Jan Juc Residential Development Framework a oCas 10:RsdnilDvlpetFramework Development Residential 21.08: Clause to 2 Map

UFCATPANN SCHEME PLANNING COAST SURF ae1 f14 of 11 Page

Source: DELWP, 2020c — Map 1 to Clause 21.09

74 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Current Torquay–Jan Juc urban consolidation area

Victoria Planning Provisions Clause 11.03-1S encourages a diversity of housing types at higher densities in and around activity centres. Similarly, Clause 22.09-3 of the Surf Coast Planning Scheme directs medium- and higher-density housing to identified urban consolidation areas close to activity centres. These are generally within 800 m — walking distance — of a major activity centre and within 400 m of a neighbourhood activity centre. Clause 22.09-3 also identifies possible areas for three-storey development as being immediately adjacent to activity centres or where development achieves housing diversity objectives.

Surf Coast Planning Scheme Clause 21.08 identifies the area surrounding the Torquay Town Centre and parts of Old Torquay as an urban consolidation area. This area is defined by The Esplanade to the east, the foreshore and Torquay Caravan Park to the south, the Surf Coast Highway to the west and Beach Road to the north. The area has been identified in the Surf Coast Planning Scheme as suitable for substantial change, including medium- and higher-density housing forms.

Old Torquay is Torquay’s traditional residential area, and it has several heritage places. It generally retains a more-traditional, coastal character with modest, detached buildings of one to two storeys with established gardens. There is some medium-density development in this area. The local community highly values Old Torquay’s traditional coastal character, and many participants during phase 1 and phase 2 engagement raised the need to protect it.

However, there is some conflict between the designation of this area as an urban consolidation area suitable for substantial change, and areas within it where the relevant Design and Development Overlays nominate the preferred height as two storeys. A preferred building height of two storeys does not align with the substantial change policy direction, as envisaged in an urban consolidation area. Further examination is needed to determine the preferred outcomes for this area.

The General Residential Zone (GRZ1) is applied throughout this urban consolidation area, except for a small precinct on Boston Road which is zoned GRZ2. The General Residential Zone has a mandatory provision which limits development to a maximum height of 11 m (three storeys). Design and Development Overlays are applied within the area that identify a range of preferred building heights between 7.5 m (two storeys) and 12 m (in the Special Use Zone area fronting the Surf Coast Highway) and which set out design objectives for specific areas. Planning Practice Note 91: Using the residential zones says it is inappropriate to apply the General Residential Zone to areas where planning policy seeks to respect the existing single- and double-storey character of an area.

While the current provisions may have generally achieved the desired built form outcome to date, they might not do so over time, especially with increased demand for housing in this area.

There are four distinct areas within the urban consolidation area: Central Torquay, The Esplanade, residential areas along the Surf Coast Highway, and the balance of the residential area. These areas and all other residential areas in Torquay–Jan Juc have been assessed for their suitability as either substantial change, incremental change or minimal change areas.

Surf Coast Settlement Background Paper 75 Surfcoast Hwy

MapDepartment 16: Torquay–Jan of Environment, Juc Land, Substantial Water and Planning Change Areas

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Current Torquay urban consolidation area District town Surf Coast Highway residential area Village

Central Torquay Hamlet/Locality Disclaimer: The State of Victoria does not warrant the Parks and Reserves Highway accuracy or completeness of informationin this publication and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no Main Road responsibility or liability whatsoeverfor any errors, faults, Water body defects or omissions in the information. Local Road © The State of Victoria Department of Environment, River 76 Surf Coast Settlement Background Paper Land, Water and Planning 2020 Department of Environment, Land, Water and Planning

Substantial change areas Proposal for the draft Surf Coast SPP

Map 16 shows the substantial change areas Proposal 11: That a core residential consolidation discussed below. area be provided for the area surrounding the Torquay Town Centre (generally fronting Zeally Bay Central Torquay Road, Anderson Street, the Surf Coast Highway and The Esplanade), and that it be identified as a Ethos Urban (2020) recommended establishing a substantial change area. core consolidation area bounded by properties fronting Zeally Bay Road, Anderson Street, the Surf Proposed implementation action Coast Highway and The Esplanade. It also recommended a preferred height of two storeys and Action 13: That once the Surf Coast SPP is approved, a maximum height of three storeys, to enable existing planning provisions applying to Central residential development to transition between the Torquay be amended to provide: higher built form of the activity centre and the lower-scale residential area surrounding it. • a mandatory maximum building height of three storeys and 11 m As explained above, the Surf Coast Planning Scheme needs to identify locations close to activity centres • reduced building site coverage where medium density housing development is • new landscaping provisions to increase acceptable , so establishing a core consolidation permeability and maintain the area’s landscape area is warranted. character. In line with its existing designation as an area for substantial change and with the need to plan for the long term, the preferred height limit of 7.5 m in the Design and Development Overlay should be removed in the central Torquay area. The existing mandatory maximum height limit of 11 m (three storeys) in the General Residential Zone is appropriate.

To maintain Torquay–Jan Juc’s vegetated, coastal nature it is also appropriate to consider the recommendations made by Claire Scott Planning (2020) about vegetation, landscaping and permeability requirements.

By slightly reducing the allowable building site coverage and with a corresponding increase in permeability, the goal of increased housing could be balanced with protecting Torquay–Jan Juc’s landscape character.

Surf Coast Settlement Background Paper 77 Department of Environment, Land, Water and Planning

Anglesea Rd South B each Rd

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Incremental Change Areas Rd Ocean Current Torquay urban t consolidation area District town Water body Grea Jan Juc urban consolidation area Highway River

Balance of Jan Juc residential area Main Road Disclaimer: The State of Victoria does not warrant the Balance of Torquay residential areas Local Road accuracy or completeness of informationin this publication and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no The Sands Parks and Reserves responsibility or liability whatsoeverfor any errors, faults, 78 Surf Coast Settlement Background Paper defects or omissions in the information. The Esplanade © The State of Victoria Department of Environment, Land, Water and Planning 2020 Map 17: Torquay–Jan Juc Incremental Change Areas Department of Environment, Land, Water and Planning

Anglesea Rd South B each Rd

d R d e at R m d ss e en M Centre side Dr B e

or Coom H bes Rd

lanade sp e E Th

Gross mans Rd t

d e

R h

y s ds i l

F e

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Ande rson St

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e o

qu ﬁ H f r d

u o

T D

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B Sunset Strp

Incremental Change Areas Rd Ocean Current Torquay urban t consolidation area District town Water body Grea Jan Juc urban consolidation area Highway River

Balance of Jan Juc residential area Main Road Disclaimer: The State of Victoria does not warrant the Balance of Torquay residential areas Local Road accuracy or completeness of informationin this publication and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no The Sands Parks and Reserves responsibility or liability whatsoeverfor any errors, faults, Surf Coast Settlement Background Paperdefects or79 omissions in the information. The Esplanade © The State of Victoria Department of Environment, Land, Water and Planning 2020 Department of Environment, Land, Water and Planning

Incremental change areas • reduced building site coverage

Map 17 shows the incremental change areas • new landscaping provisions to increase discussed below. permeability and maintain the area’s landscape character. The Esplanade Balance of Torquay residential areas The Esplanade follows the coastal edge of Torquay, which is an area in the state-significant Torquay Residential areas within the current urban Coast, Coastal Saltmarsh and Woodland landscape. consolidation area This foreshore landscape and coastal edge setting is fundamental to Torquay–Jan Juc’s landscape The balance of the residential land in the urban character. consolidation area (not including the core consolidation area discussed above) is zoned Dwellings along The Esplanade between Point General Residential Zone, which has a maximum Danger and St Anne’s Reserve including a section at building height limit of 11 m or three storeys. Design Park Lane abutting the Torquay Caravan Park are and Development Overlays (DDO20 and DDO21) generally larger than those inland, having been apply to it, specifying a preferred building height of designed to take advantage of the ocean views. 7.5 m. There are also some non-residential uses located in the section of The Esplanade between Point Danger Ethos Urban (2020) recommended rezoning the and Beach Road. balance of Torquay residential areas to Neighbourhood Residential Zone, with a maximum The prevailing built form is two storeys, with some building height of 9 m (two storeys) and retaining the three-storey buildings. This area is currently zoned existing Design and Development Overlays with a General Residential Zone, which allows for a preferred building height of 7.5 m. Including maximum building height of three storeys, with a additional private open space provisions in the Design and Development Overlay (DDO13) applying Neighbourhood Residential Zone schedule can also a preferred height of 7.5 m. Ethos Urban (2020) be considered, so that they apply to developments recommended the existing planning provisions be that do not trigger a planning permit under the retained to protect the sensitive foreshore interface relevant Design and Development Overlay. and to ensure development does not dominate the coastal reserve. Residential areas outside the current urban There is an opportunity to provide further protection consolidation area of the foreshore landscape and coastal edge when Beyond the current urban consolidation area Clause managing built form outcomes for properties on The 22.09-3 of the Surf Coast Planning Scheme identifies Esplanade, for example by setting a maximum several locations as having the capacity to building height of two storeys and reducing building accommodate a moderate level of housing growth site coverage. This would reduce the dominance of and diversity, which provides for a greater mix of buildings and allow more space for gardens and housing types at a lower intensity. It also states that canopy trees. a balance between the built form and the garden setting will continue to be the valued key Proposal for the draft Surf Coast SPP characteristic of these areas.

Proposal 13: That The Esplanade be identified as an These areas are zoned General Residential Zone and incremental change area. include the established neighbourhoods to the north of Beach Road, Church Estate and Wombah Park / Proposed implementation action Golden Beach Estate and the newer residential subdivisions at Surf View Estate and Deep Creek / Action 15: That once the Surf Coast SPP is approved, Briody Drive Estate. They are covered by three existing planning provisions applying to The Design and Development Overlays (DDO 1, DDO21 Esplanade be amended to provide: and DDO26), which specify a preferred height limit of 7.5 m and include policy objectives to maintain the • a mandatory maximum building height of two low-rise coastal character and complement the storeys or 9 m streetscape. • a preferred maximum building height of two Developments in the northern and western areas of storeys and 7.5 m Torquay, including the more recently developed • consistent private open space requirements residential estates of Great Ocean Views Estate,

80 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

South Beach Estate and The Quay, are generally of permeability and maintain the area’s landscape modest scale, and one-to-two-storey developments character. prevail. Clause 22.09-3 identifies these areas as General Residential (Standard Density) areas. They The Sands have limited capacity to accommodate future residential development due to the prevalence of The Sands development is located on the north- single dwellings, mostly as a result of covenants or eastern edge of Torquay, and it forms part of a other legal agreements that limit additional relatively new lakes and golf course development. It dwellings. These areas are currently zoned General has a distinctive character that sets it apart from the Residential Zone and are covered by a Design and rest of Torquay. Most dwellings are two storeys, and Development Overlay (DDO1), which specifies a some are three storeys. preferred height limit of 7.5 m and includes a policy objective to maintain the low-rise coastal character. This area is zoned Comprehensive Development Zone, with different building zones for a range of Given the modest scale of residential development in building heights. Generally, no planning permit is residential areas outside the current urban required for a dwelling up to 7.5 m in height in consolidation area and the preferred building height building zone 1 and for a dwelling up to 10.5 m in of 7.5 m, the township character assessment height in building zone 2. The area has been recommended these areas be rezoned to developed in accordance with The Sands Torquay Neighbourhood Residential Zone and the current Comprehensive Development Plan (Schedule 2 to Design and Development Overlays — DDO1, DDO21 Surf Coast Planning Scheme Clause 37.02). and DDO26 — be retained. Ethos Urban (2020) found the existing built form Further consideration could be given to protecting controls were sufficient for protecting township landscape character in the balance of Torquay’s character and should be retained. However, if this residential areas. This could be achieved by reducing area was to be rezoned in the future, it is the building site coverage, which would allow more recommended that the General Residential Zone be space for landscaping and canopy trees and an applied with a new Design and Development Overlay increase in permeability. to maintain consistency with the existing built form guidelines for The Sands. Given the balance of Torquay’s residential areas are located further away from the primary activity Proposal for the draft Surf Coast SPP centre (Torquay Town Centre) and have a design objective and preferred building height of 7.5 m, it is Proposal 15: That The Sands be identified as an proposed that the township character assessment’s incremental change area. recommendations be implemented.

Proposal for the draft Surf Coast SPP

Proposal 14: That the balance of Torquay’s residential areas be identified as incremental change area.

Proposed implementation actions

Action 16: That once the Surf Coast SPP is approved, existing planning provisions applying to the balance of Torquay’s residential areas be amended to provide:

• a mandatory maximum building height of two storeys or 9 m

• a preferred maximum building height of two storeys and 7.5 m

• consistent private open space requirements

• reduced building site coverage

• new landscaping provisions to increase

Surf Coast Settlement Background Paper 81 Department of Environment, Land, Water and Planning

Jan Juc residential areas Jan Juc Urban Consolidation Area

Jan Juc comprises mostly single- and double-storey Surf Coast Planning Scheme Clauses 21.08 and dwellings in a well-vegetated environment 22.09-3 support infill development within characterised by canopy vegetation and undulating approximately a 400 m radius of activity centres. topography. Map 2 of Clause 21.08 identifies an area of urban consolidation around the Jan Juc Activity Centre. The escarpment along the coastal reserve serves as a natural edge to Jan Juc’s residential areas. The A Design and Development Overlay (DDO22) applies Great Ocean Road forms Jan Juc’s northern to all of Jan Juc including the urban consolidation boundary, and the Torquay Golf Club course area. It nominates a preferred building height of 7.5 provides a physical barrier between Torquay and m and includes policy objectives to encourage Jan Juc. building design that respects and contributes to Jan Juc’s low-rise coastal character. It encourages a Clause 21.08-1 of the Surf Coast Planning Scheme diversity of dwelling types and sizes, in particular identifies Jan Juc as having a high risk of bushfire. smaller and/or adaptable dwellings within 400 m of Clause 22.09-3 designates a large area of Jan Juc as the Jan Juc Activity Centre. Bush Residential. Infill development is discouraged due to the presence of significant vegetation, high Ethos Urban (2020) found some of the land within landscape values and environmental hazards. 400 m of the activity centre may potentially be unsuitable for infill development due to the There is also a large area of low-density residential steepness of the land. The cul-de-sac nature of land on the western edge of Jan Juc that acts as a existing development would also make it difficult to transition area to the rural land beyond. The General develop while protecting the character of the area. Residential Zone applies to most of this bush Ethos Urban (2020) recommended DDO22 be residential land, that has a maximum mandatory amended to define the preferred area of infill to be height limit of up to 11 m and no more than three properties fronting both sides of Regent Street to the storeys for residential dwellings. A Design and north-east, Sunset Strip to the north-west, Domain Development Overlay (DDO22) nominates a Road to the west, and Regal Road and Empire preferred building height of 7.5 m. Avenue.

Overall, Claire Scott Planning (2020) found a visual To maintain Jan Juc’s landscape character, balance had been achieved between vegetation and consideration could be given to amending building built form, and therefore no changes to existing site coverage, permeability and landscaping planning provisions are recommended. requirements. Slightly reducing building site coverage and increasing permeability would ensure There are two distinct areas within Jan Juc: the Jan that Jan Juc’s consolidation area does not Juc urban consolidation area and the balance of negatively impact the valued landscape character Jan Juc’s residential areas. and environmental values.

Given the scale of the Jan Juc Activity Centre and the sensitive residential and landscape setting, the Ethos Urban recommendations should be explored and the residential consolidation area refined. Further, the area should be rezoned to Neighbourhood Residential Zone with a maximum building height of 9 m and two storeys and a preferred height of 7.5 m and two storeys, and DDO22 should be retained.

82 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Proposal for the draft Surf Coast SPP views from the Great Ocean Road, a mandatory maximum building height of two storeys should be Proposal 16: That: implemented.

• the Jan Juc Urban Consolidation Area be Further consideration could be given to building site identified as an incremental change area coverage, permeability and landscaping requirements to ensure the valued landscape • the extent of the area be redefined as properties character of Jan Juc is maintained. fronting both sides of Regent Street to the north- east, Sunset Strip to the north-west, Domain Road Proposal for the draft Surf Coast SPP to the west, and Regal Road and Empire Avenue. Proposal 17: That the balance of the Jan Juc Proposed implementation action residential area be identified as an incremental change area. Action 17: That once the Surf Coast SPP is approved, existing planning provisions applying to the Jan Juc Proposed implementation actions Urban Consolidation Area be amended to provide: Action 18: That once the Surf Coast SPP is approved, • a mandatory maximum building height of two the existing planning provisions applying to the storeys and 9 m balance of the Jan Juc residential area be amended • a preferred maximum building height of two to provide: storeys and 7.5 m • a mandatory maximum building height of two • amended building site coverage requirements storeys and 9 m

• amended landscaping and permeability • a preferred maximum building height of two requirements. storeys and 7.5 m • amended building site coverage requirements Balance of the Jan Juc residential area • amended landscaping and permeability The balance of Jan Juc’s residential areas is zoned requirements. General Residential Zone with a preferred height limit of 7.5 m. Ethos Urban (2020) recommended that • Minimal change areas — given the desired built form outcome and the nature of constraints in this area, and in line with the purposes of the residential zone — this area be rezoned to Neighbourhood Residential Zone. It also recommended that residential properties located opposite or abutting the coastal reserve — covered by a Design and Development Overlay (DDO13) that designates a preferred building height of 7.5 m — also be rezoned to Neighbourhood Residential Zone, to protect the views from the state-significant Bird Rock Lookout.

Ethos Urban (2020) also found that residential properties fronting the Great Ocean Road and backing onto the Torquay Golf Club course and properties fronting Hoylake Avenue (where some properties have already been redeveloped for medium-density housing) could potentially accommodate some infill development without detriment to landscape views, due to the size of lots. It recommended that this area be retained in the General Residential Zone and that the current Design and Development Overlay specifying a preferred height limit of 7.5 m also be retained.

However, given the location of some of these properties on the nationally heritage-listed Great Ocean Road and the strong policy direction to retain

Surf Coast Settlement Background Paper 83 MapDepartment 18: Torquay–Jan of Environment, Juc Land, Minimal Water andChange Planning Areas

Anglesea Rd South B each Rd

d R d Hendy Main Rd e R

mat d ss e en M Centre side Dr B e

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Minimal Change Areas Rd Ocean Remaining low-density t residential areas District town Grea Strathmore Drive Village

Park and Reserves Highway Disclaimer: The State of Victoria does not warrant the Main Road accuracy or completeness of informationin this publication Water body and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no River Local Road responsibility or liability whatsoeverfor any errors, faults, 84 Surf Coast Settlement Background Paper defects or omissions in the information. © The State of Victoria Department of Environment, Land, Water and Planning 2020 Department of Environment, Land, Water and Planning

Minimal change areas

Anglesea Rd South B each Rd Map 18 shows the minimal change areas discussed below. d Strathmore Drive, Jan Juc R d Hendy Main Rd e R mat d ss This low-density residential area is located between e en M Centre side Dr B e Strathmore Drive, Great Ocean Road, Bells o h Boulevard and the upper tributary of Jan Juc Creek.

es s r It is a highly prominent, elevated location with views

o Co H towards the ocean, and it has been identified as a ombes R d landscape of state significance. It is covered by a Development Plan Overlay (DPO6) that refers lanade sp specifically to retaining views to Bass Strait. e E Th Surf Coast Planning Scheme Clause 21.08-6 Gross mans Rd identifies this area as having the potential to t

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coa f r u Torquay - Jan Juc

S Claire Scott Planning (2020) found that a balance of built form and vegetation in Jan Juc’s established A areas resulted in a softer visual impact towards the Bellbrae nderson St coast from elevated areas including Bells Boulevard and Strathmore Drive. While development in this area could potentially be screened by vegetation, Be ll St this would change the nature of arrival in Torquay– v Jan Juc: the entrance along the Great Ocean Road d Remaining low-density residential areas v A

Rd e B k would become a vegetated corridor, rather than s y a l a ld y having as it does at present open views towards There are some low-density residential areas on the u e o q ﬁ H f r d Bass Strait. fringes of Torquay–Jan Juc in a Low Density u o

T D h R Residential Zone. These areas are characterised by c a Given the highly prominent nature of this area (which larger lots with small dwellings surrounded by large e

B is a landscape of state significance and close to the s gardens and plenty of canopy trees. They are leafy l l e nationally heritage-listed Great Ocean Road) and and contribute to the landscape character of the B Sunset Strp there is an objective to retain views of Bass Strait, area. The Low Density Residential Zone areas also this area should remain as a low-density minimal contribute to the transition between the built-up change area. residential areas and surrounding agricultural land.

Proposal for the draft Surf Coast SPP Surf Coast Planning Scheme Clause 21.07 states that lots sizes in areas should be limited to a range of 0.4 Proposal 18: That the Strathmore Drive area be ha to 1 ha unless larger lots are needed for on-site identified as a minimal change area. treatment of waste, protection of pockets of vegetation or the land has a high landscape value.

As these areas contribute positively to the landscape character of Torquay–Jan Juc and provide a transition between built-up and rural areas, they should remain as a low-density minimal change area and remain Low Density Residential Zone.

Proposal for the draft Surf Coast SPP

Proposal 19: That the remaining low-density residential areas be identified as minimal change Minimal Change Areas areas. Rd Ocean Remaining low-density t residential areas District town Grea Strathmore Drive Village

Park and Reserves Highway Disclaimer: The State of Victoria does not warrant the Main Road accuracy or completeness of informationin this publication Water body and any person using or relying upon such information does so on the basis that the State of Victoria shall bear no River Local Road responsibility or liability whatsoeverfor any errors, faults, defects or omissions in the information. Surf Coast Settlement Background Paper 85 © The State of Victoria Department of Environment, Land, Water and Planning 2020 Department of Environment, Land, Water and Planning Map 19: Proposed Torquay–Jan Juc Protected Settlement Boundary (Option 1) Rd

Area Subject To Detailed Anglesea Environmental Investigation

Future y Hendy Main Rd w Settlement H

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Low Density Ecologically Sustainable Development Dufﬁelds Rd Torquay - Jan Juc Area

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Torquay-Jan Juc Option 1

Surf Coast Declared Area Township Area Activity Centre District town

Protected Settlement Boundary Urban-Rural Interface Substantial Change Area Highway

Green Break Future Settlement Area Incremental Change Area Main Road Disclaimer: The State of Victoria does not warrant the Low Density Ecologically Water Body Minimal Change Area Local Road accuracy or completeness of informationin this publication Sustainable Development Area and any person using or relying upon such information does Area Subject To Detailed so on the basis that the State of Victoria shall bear no River Parks and Reserves Armstrong Creek responsibility or liability whatsoeverfor any errors, faults, 86 Surf Coast SettlementEnvironmental Background Investigation Paper Transit Corridor defects or omissions in the information. © The State of Victoria Department of Environment, Land, Water and Planning 2020 Department of Environment, Land, Water and Planning Map 20: Proposed Torquay–Jan Juc Protected Settlement Boundary (Option 2) Rd Rd

Area Subject To Detailed Area subject to detailed Anglesea Environmental Investigation Anglesea environmental investigation

Future y Future y Hendy Main Rd w Hendy Main Rd w Settlement H settlement H

Area st area st a a

rfco rfco u u

S S

Low Density Ecologically Sustainable Development Dufﬁelds Rd Torquay - Jan Juc Dufﬁelds Rd Torquay - Jan Juc Area

Great O Great O cean Rd cean Rd

each Rd D each Rd D arian R arian R B d B d

ls ls l l e e

B Cow B Cow rie Rd r rie Rd r C C C x C x entra li entra li l Av e l Av e F F wy Beach Rd wy Beach Rd H H Pueb Pueb la St la St Sp Sp ring St ring St

Surfcoast Surfcoast d Zea Torquay - Jan Juc d Zea Torquay - Jan Juc lly Bay R lly Bay R R d R d ch Br ch Br ea istol Rd ea istol Rd B B s s ll B Gilbe ll B Gilbe oston Rd rt St oston Rd rt St Be Be Ande Ande rson St rson St ip ip tr tr S S t t t t se Pri se Pri vard ce S vard ce S n e St n e St u e u e S ul S ul d d o i o i B r B r n P n P ea ea c Bell St c Bell St O O

Torquay-Jan Juc Option 1 Torquay-Jan Juc Option 2

Surf Coast Declared Area Township Area Activity Centre District town Surf Coast Declared Area Township area Activity centre District town

Protected Settlement Boundary Urban-Rural Interface Substantial Change Area Highway Protected settlement boundary Urban-rural interface Substantial change area Highway

Green Break Future Settlement Area Incremental Change Area Main Road Green break Future settlement area Incremental change area Main Road Disclaimer: The State of Victoria does not warrant the Disclaimer: The State of Victoria does not warrant the Low Density Ecologically Low density ecologically Water Body Minimal Change Area Local Road accuracy or completeness of informationin this publication Water body Minimal change area Local Road accuracy or completeness of informationin this publication Sustainable Development Area and any person using or relying upon such information does sustainable development area and any person using or relying upon such information does Area Subject To Detailed so on the basis that the State of Victoria shall bear no Area subject to detailed so on the basis that the State of Victoria shall bear no River Parks and Reserves Armstrong Creek responsibility or liability whatsoeverfor any errors, faults, River Parks and Reserves Armstrong Creek responsibility or liability whatsoeverfor any errors, faults, Environmental Investigation Transit Corridor defects or omissions in the information. environmental investigation Surf Coast SettlementTransit Corridor Background Paperdefects or omissions87 in the information. © The State of Victoria Department of Environment, © The State of Victoria Department of Environment, Land, Water and Planning 2020 Land, Water and Planning 2020 Department of Environment, Land, Water and Planning

References

ASR Research (2015). Surf Coast Shire Spring Creek PSP Community Infrastructure Needs Assessment – Stage Two, Final Report, ASR Research, Melbourne, Victoria.

Capire (2019). Surf Coast Distinctive Areas and Landscapes Phase One Engagement Findings Report. Capire Consulting Group Pty Ltd, Carlton, Victoria.

Capire (2020). Surf Coast Distinctive Areas and Landscape Phase Two Engagement Report, Capire Consulting Group Pty Ltd, Carlton, Victoria.

Greater Geelong City Council (2018). Settlement Strategy. Greater Geelong City Council, Geelong, Victoria.

Claire Scott Planning (2019). Distinctive Areas & Landscapes Surf Coast Declaration Area: Boundaries Advice, Claire Scott Planning, Melbourne, Victoria.

Claire Scott Planning (2020). Distinctive Areas & Landscapes: Surf Coast Landscape Assessment Review Volume 1, Claire Scott Planning, Melbourne, Victoria.

Claire Scott Planning (2020). Distinctive Areas & Landscapes: Surf Coast Landscape Assessment Review Volume 2: Statutory Implementation Package, Claire Scott Planning, Melbourne, Victoria.

Coffey (2015). Spring Creek PSP, Torquay: Land Capability Assessment, Coffey, Melbourne, Victoria.

Department of Environment, Land, Water and Planning (2015a). Planning Practice Note 37: Rural Residential Development. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2015b). Planning Practice Note 47: Urban Growth Zone. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2015c). Planning Practice Note 53: Managing coastal hazards and the coastal impacts of climate change. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2016). Planning Practice Note 36: Implementing a Coastal Settlement Boundary. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020a). City of Greater Geelong Planning Scheme. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2017b). Plan Melbourne 2017–2050 Metropolitan Planning Strategy. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020c). Surf Coast Planning Scheme. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2018). Great Ocean Road Action Plan. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019a). Distinctive Areas and Landscapes: Assessment of Surf Coast against the declaration requirements of the Planning and Environment Act 1987. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019b). Planning Practice Note 90: Planning for housing. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019c). Planning Practice Note 91: Using the residential zones. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2019d). Victoria in Future 2019. State of Victoria, Melbourne.

Department of Environment, Land, Water and Planning (2020). Marine and Coastal Policy. State of Victoria, Melbourne.

Department of Sustainability and Environment (2004) Great Ocean Road Region – A land use and transport strategy 2004, Department of Sustainability and Environment, Melbourne.

88 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Ecology and Heritage Partners (2015a). Spring Creek Precinct Structure Plan, Torquay, Victoria: Aboriginal Heritage Impact Assessment, Ecology and Heritage Partners, Melbourne, Victoria.

Ecology and Heritage Partners (2015b). Spring Creek Precinct Structure Plan, Torquay Victoria: Post-contact Heritage Assessment, Ecology and Heritage Partners, Melbourne, Victoria.

Ecology and Heritage Partners (2016). Biodiversity Assessment of the Spring Creek Urban Growth Area, Ecology and Heritage Partners, Melbourne, Victoria.

Ecology and Heritage Partners (2020) Opportunities and Constraints Assessment: Torquay North East Future Residential Investigation Area, Ecology and Heritage Partners, Geelong, Victoria.

Ethos Urban (2020). Surf Coast Distinctive Area and Landscape: Township Character Assessment. Unpublished.

G21 Geelong Region Alliance (2013). G21 Regional Growth Plan. G21 Geelong Region Alliance, Geelong.

Great Ocean Road Regional Tourism (2015) Strategic Master Plan For The Great Ocean Road Region Visitor Economy: 2015-2025, Regional Development Australia and Regional Development Victoria, Barwon South West, Victoria.

Mark Imhof, David Rees, Wayne Harvey, Bruce Gill & Don Cherry (2018). Assessment of Agricultural Land Capacity in Melbourne’s Green Wedge and Peri-urban Areas, Agriculture Victoria Research Final Technical Report. Department of Economic Development, Jobs, Transport and Resources, Melbourne, Victoria.

Planning Panels Victoria (2013). Planning and Environment Act 1987: Panel Report Surf Coast Planning Scheme Amendment C66 Torquay - Jan Juc Strategic Planning Studies, Planning Panels Victoria, Melbourne, Victoria.

Parks Victoria (2015). Shipwreck Coast Master Plan, Parks Victoria, Melbourne.

Spatial Economics (2018). Residential Land Supply and Demand Assessment: Surf Coast. Spatial Economics, Melbourne.

Spatial Economics (2019). Industrial Land Supply and Demand Assessment: Surf Coast. Spatial Economics, Melbourne.

Spiire (2015). Spring Creek Precinct Structure Plan: Servicing and Utilities Assessment Report, Spiire, Melbourne, Victoria.

Surf Coast Shire (2007). Torquay and Jan Juc Structure Plan. Surf Coast Shire, Torquay.

Surf Coast Shire (2010). Bellbrae Structure Plan, Surf Coast Shire, Torquay.

Surf Coast Shire (2012). Torquay North Outline Development Plan. Surf Coast Shire, Torquay.

Surf Coast Shire (2014). Sustainable Futures Plan Torquay–Jan Juc 2040. Surf Coast Shire, Torquay.

Surf Coast Shire (2015). Spring Creek Precinct Structure Plan. Surf Coast Shire, Torquay.

Surf Coast Shire (2017). Torquay Town Centre Project Urban Design Framework, Surf Coast Shire, Torquay.

Surf Coast Shire (2019a). Built Form Guidelines Torquay Town Centre. Surf Coast Shire, Torquay.

Surf Coast Shire (2019b). Rural Hinterland Futures Strategy. Surf Coast Shire, Torquay.

Surf Coast Shire (Undated). Sustainable Futures Plan Torquay–Jan Juc 2040 Context report. Surf Coast Shire, Torquay.

Terramatrix (2017). Spring Creek Precinct Structure Plan, Bushfire assessment and development report, Terramatrix, Melbourne, Victoria.

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Surf Coast Settlement Background Paper 89 Department of Environment, Land, Water and Planning

Abbreviations

Acronym Definition DDO Design and Development Overlay DELWP Department of Environment, Land, Water and Planning ESO Environmental Significance Overlay GRZ General Residential Zone PSP Precinct Structure Plan SPP Statement of Planning Policy SUZ Special Use Zone UDF urban design framework UGZ Urban Growth Zone VPO Vegetation Protection Overlay Glossary

Term Definition Aboriginal cultural heritage Tangible heritage — Aboriginal places, objects and ancestral remains — and intangible heritage — knowledge of or expression of Aboriginal tradition including oral traditions, performing arts, stories, rituals, festivals, social practices, craft, visual arts, and environmental and ecological knowledge (not including anything that is widely known to the public), as set out in the Aboriginal Heritage Act 2006 Biodiversity All Biodiversity components of the living world: the number and variety of native plants, animals and other living things across our land, rivers, coast and ocean. Biodiversity includes the variety of their genetic information, their habitats and their relationship to the ecosystems within which they live. Built form The combination of features of a building including its style, façade treatments, setbacks, height and site coverage. Declared area An area to which an order under Planning and Environment Act 1987 section 46AO applies. Map 1 shows the Surf Coast declared area. Declared area framework A plan required by the Planning and Environment Act 1987 section 46AV(2) to plan provide a framework for decision-making about the future use and development of land in the declared area. District town A regional centre with a large, diverse population and an employment and housing base, and which has strong relationships with surrounding settlements. Within the G21 region, district towns can have populations from between 10,000 and 100,000 people. G21 Alliance The formal alliance of government, business and community organisations working together to improve the lives of people in the G21 region, which spans the City of Greater Geelong, Colac Otway Shire, Surf Coast Shire, Borough of Queenscliffe and Golden Plains Shire. Green break Predominantly rural land located in between settlement boundaries that may comprise a variety of non-urban land uses (such as agriculture, hobby farms and agritourism businesses). Greenfield area Rural or non-urban land designated for new or future development.

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Term Definition Great Ocean Road region The area south of Princes Highway between Warrnambool and Torquay including the coast. The region includes parts of the City of Warrnambool and the Moyne, Corangamite, Colac Otway and Surf Coast shires. Hamlet/locality A cluster of rural residential dwellings. Historic heritage Historic types of heritage places which can include archaeological sites and artefacts, buildings, structures, precincts, gardens, trees, cemeteries, cultural landscapes, shipwrecks and their artefacts, and significant objects and objects associated with places. ‘Historic’ can refer to a range of periods or eras Incremental change area An area where housing growth occurs within the context of existing or preferred neighbourhood character. Planning Practice Note 90: Planning for Housing (PPN90) has further details. Infill development The incremental development of additional dwelling(s) on individual residential sites (such as a three-unit development on a site on which there was previously a single house). Investigation area Land identified in an approved structure plan for the potential future growth of a settlement, which needs further assessment prior to determine its potential suitability for urban development and/or township-related uses, when there are compelling reasons to require an investigation. Landscape character The sum of the physical features of an area (such as its topography, geology, waterbodies, vegetation and urban development). Landscape significance The designation of a landscape as special or important due to its visual, cultural heritage, environmental, scientific, social and other values. Living spaces Places where Wadawurrung People lived, with housing and access to fresh water and where aquacultural and agricultural activity including the development of infrastructure took place. Low-density residential area An area designated for low-density residential development that responds to a semi-rural environment and is often constrained by servicing issues. Minimal change area An area with neighbourhood, heritage, environmental or landscape characteristics that are sufficiently special to a municipality, metropolitan Melbourne or Victoria to warrant protection. Planning Practice Note 90: Planning for Housing (PPN90) has further details. Peri-urban area An area, some or all of which is less than 100 km from Melbourne, with a predominantly rural character. Peri-urban town A settlement outside Melbourne’s Urban Growth Boundary which is less than 100 km from Melbourne. Protected settlement A settlement boundary in a declared area that is protected under a SPP. Any boundary amendment to a SPP that seeks to change a protected settlement boundary must be ratified by both Houses of Parliament.

A protected settlement boundary is a long-term settlement boundary intended to protect the valued attributes of the rural hinterland surrounding the settlement by containing its growth. Urban-rural transition area An area that provides a soft edge between urban development within a settlement boundary and the rural land beyond, to minimise the visibility of the development and better manage the settlement’s environmental and landscape impacts. Settlement An area comprising township- or urban-related land uses that includes housing, community facilities, commercial and industrial areas and other uses.

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Term Definition Settlement boundary A long-term boundary that marks the limit of urban development in an area and protects the valued attributes of the surrounding rural hinterland by containing the settlement’s growth. Unlike a protected settlement boundary, amendments to a settlement boundary do not need to be ratified by both Houses of Parliament. State significance A quality of environmental, landscape, economic and cultural heritage value important to the State of Victoria. Statement of Planning A Statement of Planning Policy approved under Planning and Environment Policy (SPP) Act 1987 pt 3AAB in relation to a declared area. Substantial change area An area where housing intensification will occur that results in a substantially different scale and intensity of housing compared to other areas of a municipality, including an area in and around an activity centre or along a public transport corridor and a strategic development area. Planning Practice Note 90: Planning for Housing (PPN90) has details. Traditional Owners An Aboriginal group with Country in a declared area. The Wadawurrung are the Traditional Owners of the Surf Coast declared area. Village A small settlement with a low population. Visitor A person travelling and staying outside their usual place of residence for holidaying, sight-seeing and recreation, and a person travelling for other reasons (such as visiting friends and relatives, business, work, education and accessing medical services). Visitor economy The production of goods and services for consumption by visitors including industries that directly serve visitors (such as hotels, transport providers, tour companies and attractions) and intermediaries and indirectly involved industries (such as retail and food production).

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Appendix 1: Torquay–Jan Juc housing supply estimates

Supply estimates Road, 850 at South Beach Road, 330 north of Deep Creek along the Surf Coast Highway. The total Based on an analysis of existing zoning and recent greenfield capacity is 4,250. development trends in Torquay–Jan Juc, there is an estimated 21 to 30 years of infill supply and 13 years These calculations do not include the currently of greenfield supply. These estimates allow for developed, low-density residential areas at Briody approximately 1,600 to 2,600 infill dwellings and Drive and Strathmore Drive. Spatial Economics 4,250 additional greenfield dwellings. (2018) suggest these areas could be re-subdivided to yield 210 and 165 dwellings, however this analysis The total increase — of between 5,850 and 6,850 assumes this existing low-density housing is unlikely dwellings — and the slowing supply is in line with to redevelop. Additionally, these calculations do not Victoria in Future 2019 (DELWP 2019d) projections include the possible future development sites of that show the population of Torquay–Jan Juc will Torquay North East Future Residential Investigation grow steadily to 30,300 people by 2031 and reach Area (760 possible dwellings) and the Messmate 32,500 by 2036. Road Future Residential Area (850 possible dwellings), as they are not currently zoned for urban growth. Types of supply The supply for new dwellings in Torquay–Jan Juc Infill comes in two forms: greenfield development and dispersed infill development. The infill component of capacity and supply is less certain than is the greenfield component because In the context of Torquay–Jan Juc, greenfield many landowners would need to subdivide their land development generally refers to opportunities for to add a significant level of supply. Estimates of the residential land supply on broad-hectare sites number and density of these fragmented projects previously used for rural land uses. This development are based on recent trends, zoning constraints and a is generally single, detached dwellings; however, it feasible number of landowners deciding to offer their can include other dwelling types (such as attached land for further housing development. townhouse dwellings). The ratio of landowner-to- dwelling yield is small, and there is a relatively high To arrive at a conservative estimate, the analysis annual supply compared to infill. assumed:

Dispersed infill development is generally detached • infill development only occurs on lots that currently unit development or attached townhouse have one dwelling (and so does not rely on more development within existing residential areas. Based than one owner agreeing to sell) on recent trends, there is a relatively low annual supply, compared to greenfield. • infill development is restricted to older, established areas: areas zoned residential before 2001

Greenfield • lots under 300 m2 are excluded, being too small for further development Greenfield development is a known part of housing capacity and supply, however there is uncertainty • lots with a heritage or environmental overlay are regarding the inclusion or exclusion of some parcels excluded of land. The take-up rate of this land is assumed to be relatively constant, as the market is well- • all lots currently vacant are developed understood by developers and can be staged • development is consistent with current trends of accordingly. Spatial Economics (2018) covered this attached townhouses and small-lot, single- aspect of development, and it calculated capacity dwelling, rear subdivisions with a density of about for 4,370 dwellings — 4,250 greenfield and 120 major 25–30 dwellings per hectare. An additional possible infill — in areas currently zoned for residential scenario is provided for an area of higher-density development including 1,940 dwellings at the Spring development around the Torquay Town Centre Creek Future Residential Area. bounded by the Surf Coast Highway, Beach Road For this analysis, an intermediate classification of and Bell Street. remnant broad-hectare was included, to count the Infill supply is considered exhausted when 650 greenfield lots that are subdivided but vacant. In development numbers slow to a scattering of addition to the these 650, the greenfield lots used in projects that deliver little net additional dwellings. this calculation include 1,940 at the Spring Creek This tailing-off of development could continue Future Residential Area, 480 to the east of Duffields

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almost indefinitely, so a scenario where all lots are developed to their maximum is unlikely. Infill capacity is therefore reached when development stops being ‘meaningful’ and slows to a small number of projects. When this actually happens depends on the state of the development market and on the financial and economic conditions that cause existing landowners to consider subdividing their land.

There has been some development of major infill sites in recent years. However, this type of development is not a major source of supply in the declared area, and the potential for dwellings from additional major infill sites is not included in the estimates. Shop-top developments in commercial areas have also been excluded from the estimates. Table 7 sets out the potential infill capacity under three scenarios:

• all the available lots are developed: full build-out, where all potential lots are developed: a highly unlikely scenario

• 50% of the available lots are developed: every second available lot is developed

• 30% of the available lots are developed: one in three lots is developed.

Table 7: Potential infill capacity scenarios

Scenario Assumed density (dwellings per hectare) 25–30 25–30, 35–45 around town centre All available lots developed 4,600 5,100 50% available lots developed 2,400 2,600 30% available lots developed 1,600 1,700

The timeframes for these supply scenarios to be reached depend on development rates and the relative take-up of infill and greenfield development.

Development scenarios

According to Spatial Economics (2018), about 340 dwellings a year have been developed in Torquay–Jan Juc in recent years. Of these, about 50 were dispersed infill and 270 were greenfield. The remainder was the redevelopment of large infill sites and low-density development on the town fringe.

Greenfield and infill supply are not entirely independent, and as greenfield supply is exhausted it is assumed the development market will shift slightly to provide more infill supply. While these scenarios are based on recent trends, from a policy and sustainability outcome perspective infill development is preferred to occur before greenfield development.

Table 8 shows possible scenarios based on these recent trends and industry feedback in Spatial Economics (2018) suggesting a 10% increase in development. The 50% and 30% capacities are shown, with both assuming 20% of greenfield development activity switches to infill — a high estimate —as greenfield supply is exhausted.

Table 8: Housing take-up and years of supply

Scenario % of available Development Infill densities Greenfield Infill years infill lots take-up (dwellings per years supply supply developed ha) Scenario 1 50% 370 dwellings p.a. 25–30 13 28 (Figure 2) reducing to 110 p.a. after greenfield exhausted in 2034 Scenario 2 30% As scenario 1 25–30 13 21 (Figure 3) Scenario 3 50% As scenario 1 25–30 13 30 (Figure 4) 35–45 around town centre

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Scenario % of available Development Infill densities Greenfield Infill years infill lots take-up (dwellings per years supply supply developed ha) Scenario 4 30% As scenario 1 25–30 13 22 (Figure 5) 35–45 around town centre

The greenfield and infill years of supply in Table 8 are approximate, as development and densities will vary.

Development take-up

Figure 2: Housing take-up and years of supply, scenario 1

Figure 3: Housing take-up and years of supply, scenario 2

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Figure 4: Housing take-up and years of supply, scenario 3

Figure 5: Housing take-up and years of supply, scenario 4

Lot development

Map 21 shows the location and capacity of greenfield land and the calculated capacity of infill development if all available lots were developed. Refer to the method and scenarios above for details.

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Map 21: Greenfield and infill development, total estimated capacity

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of Duffields Road within the Spring Creek Future Appendix 2: Spring Residential Area would be subject to the preparation of a growth area framework plan and Creek Future subsequently to a more-detailed PSP. The structure plan also recommended that Residential Area development of the framework plan should be an inclusive, creative process — so the community strategic planning owned it —and it should aim for ecologically sustainable development. history timeline The proposed framework plan would establish a settlement boundary for this western growth corridor, and in the interim the Spring Creek Future Residential Area would continue to be for rural use, Strategic plans and policies relevant to the planning to preserve its potential for urban development. history of the Spring Creek Future Residential Area are set out below. 2008 Spring Creek Urban Growth Framework 1996 Comprehensive Strategy Plan for Plan (not adopted) Torquay–Jan Juc In 2008, the Surf Coast Shire Council prepared and exhibited the draft Spring Creek Urban Growth After the South Barwon and Barrabool municipalities Framework Plan. The plan covered an area of 700 ha were amalgamated in 1994, the Surf Coast Shire to the west of Torquay, bounded by Duffields Road, Council assumed responsibility for Torquay and Jan Grossmans Road, Great Ocean Road and Anglesea Juc, and it undertook the 1996 Comprehensive Road. The area adjoined Bellbrae. Strategy Plan for Torquay–Jan Juc. The strategy nominated the Spring Creek Future Residential Area In February 2009, over 1,000 protesters opposed the as a long-term growth corridor, and it also development the plan contemplated at the Spring nominated the area beyond the first kilometre west Creek Future Residential Area at what became of Duffields Road as a special investigation area. known as the ‘red rally’.

2007 Torquay and Jan Juc Structure Plan In April 2009, the Surf Coast Shire Council resolved to abandon the plan in response to the 2,800 opposing The 2007 Torquay and Jan Juc Structure Plan (Surf submissions, and it committed to a broader strategic Coast Shire, 2007) said preparation of a framework planning process with community participation to plan for the Spring Creek Future Residential Area identify preferred locations for growth and confirm should start as soon as practical, and it noted the the settlement boundary for Torquay–Jan Juc. Spring Creek Valley is a unique, highly aesthetic landscape that presents an outstanding opportunity Council also adopted Duffields Road as the western for a creative and adaptive approach to coastal settlement boundary, so preventing any development. urban rezoning or development in the Spring Creek Future Residential Area until the outcomes of the The structure plan said preparation of the Torquay–Jan Juc 2040 project were known. framework plan should be a highly inclusive process, to reflect the preferences of the local community. 2008 Surf Coast Planning Scheme Amendment The framework plan should among other things C37 address the long-term western settlement boundary of Torquay and the interrelationship of the growth In October–November 2008, Amendment C37 to the corridor with Bellbrae. Surf Coast Planning Scheme was exhibited. Fifty- seven submissions were received and were The structure plan identified the Spring Creek Future considered by an independent panel in July 2009. Residential Area as a future urban growth corridor, and the strategic growth principles said that Amendment C37 gave statutory effect to several Torquay would accommodate residential growth strategic studies affecting Torquay–Jan Juc over the next 20 years within the existing settlement including the 2007 Torquay and Jan Juc Structure boundaries by: Plan (Surf Coast Shire, 2007). A key element of Amendment C37 was the inclusion of a revised • encouraging urban consolidation within the Torquay–Jan Juc strategy in the municipal strategic established central Torquay area, particularly statement, including a revised Torquay–Jan Juc close to the town centre framework plan. • planning residential growth in two corridors: to the north to South Beach Road and to the west to The revised framework plan, together with wording in Duffields Road; and at the appropriate time, west the municipal strategic statement, established the of Duffields Road. Urban development of land west first kilometre of the Spring Creek Future Residential Area — the first kilometre west of Duffields Road —

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as a future urban growth area. The Minister for 2014 Surf Coast Planning Scheme Amendment Planning, when approving Amendment C37, C95 confirmed that in accord with Surf Coast Planning Scheme Clause 15.08-2 that the land in the Spring When approving Amendment C66, the Minister for Creek Future Residential Area identified as a future Planning also approved Amendment C95 under urban growth area in Clause 21.10 of the framework s20(4) of the Act without public notice. It was also plan was now within the coastal settlement gazetted in March 2014. The amendment rezoned boundary. the ‘1-km-west’ land to Urban Growth Zone and the land for the Christian College Geelong education The Minister for Planning also said he expected that facility to Special Use Zone Schedule 9. the Torquay–Jan Juc 2040 study would establish a firm, unbroken settlement boundary; and that when 2015 Spring Creek community panel defining this settlement boundary, the history of planning at Spring Creek Future Residential Area In August 2015, Council commenced a community would be considered and any significant shift in panel process to provide guidance about the form, planning for the identified the Spring Creek Future content and principles to be addressed in the Spring Residential Area would need to be rigorously Creek PSP. In particular, it asked the community justified. Amendment C37 was gazetted on 10 June panel to advise about how urban growth could be 2010. designed that is in balance with the surrounding environment. The community panel comprised nine 2013 Surf Coast Planning Scheme Amendment landowner representatives, representatives of three C66 community groups and 19 randomly selected residents. The community panel process is at the In January–March 2013, Council exhibited highest end of public participation methods, in line Amendment C66 to implement the with the internationally recognised IPA2 Spectrum of recommendations of several strategic studies Public Participation. undertaken by Council including the 2012 Sustainable Futures Plan Torquay–Jan Juc 2040 Over four independently facilitated workshops, the (Surf Coast Shire, 2014). The amendment, among panel provided recommendations to guide the other things, deleted the future urban growth preparation of the PSP. A draft framework plan corridor for Spring Creek and put in place a responding to the community panel’s work was settlement boundary along Duffields Road. The 538 exhibited from November 2015 to January 2016, and submissions Council received were referred to an submissions to the draft framework informed the independent panel in July–August 2013. preparation of the PSP.

The independent panel recognised the previous strategic work supporting growth in the Spring Creek Future Residential Area, supported residential growth in the first kilometre west of Duffields Road and suggested that the land beyond that first kilometre be investigated to confirm the size and form of a green break to Bellbrae.

In December 2013, Council voted not to adopt the panel’s recommendations, which supported development in the Spring Creek Future Residential Area. Council’s position was that the land out to 1 km west of Duffields Road should not be within the settlement boundary.

Following its submission to the Minister for Planning for approval, Amendment C66 was approved and gazetted on March 2014. It incorporated the undisputed sections of the Torquay–Jan Juc Sustainable Futures Plan 2040 and also retained the growth area designation over the land out to 1 km west of Duffields Road.

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2016 Surf Coast Planning Scheme Amendment an average density of 10.38 dwellings per net C114: Spring Creek Precinct Structure Plan developable hectare.

In May–June 2016, Surf Coast Planning Scheme Council again considered Amendment C114 in Amendment C114 was exhibited, which proposed to October 2017, when it adopted the amendment and implement a PSP, development contributions plan required changes to the PSP including to increase and native vegetation precinct plan to support the the housing density adjacent to the Christian College urban development of the Spring Creek Future School and the neighbourhood and local activity Residential Area out to 1 km west of Duffields Road. centres, the completion of the native vegetation precinct plan and changes to the residential design Preparation of the PSP was informed by the 2015 controls. The adopted Spring Creek PSP proposes to community panel process through which facilitate urban development including provision for representatives of the community, landowners and about 1,940 residential lots, resulting in an estimated the development community participated in population of 4,925 residents (assuming an average planning for the PSP. household size of 2.54 people). It provides for a diversity of lot sizes including areas of lower-density The PSP provided for a mix of about 1,940 residential development adjacent to the western boundary of lots ranging in size from smaller (400 m2 minimum) the area. lots adjacent to the activity centre and local convenience centres and larger lots up to 2000 m2 Amendment C114 was submitted to the Minister for along the western boundary of the growth area, Planning for approval in March 2018 and the Native adjacent to Grossmans Road and along the northern Vegetation Precinct Plan was submitted in April 2018. side of Spring Creek. It also included a new neighbourhood activity centre, two local In October 2018, the Minister for Planning advised convenience centres, open space reserves along that the adopted Amendment C114 and the Spring Creek and its tributary and reserves around associated PSP and Native Vegetation Precinct Plan the areas of remnant native vegetation. were not suitable for approval in their current form and required review. Council received 80 submissions and referred them to an independent panel, which considered them at In April 2019, DELWP, on behalf of the Minister for public hearings in November 2016. Planning, advised Council, the Victorian Planning Authority and all landowners and developers within The panel commended Council for its innovative the Amendment C114 area that the Minister for approach to engaging the public in the planning Planning had decided to defer his final decision on process, but it also found that a common factor for Amendment C114 pending the outcomes of the both the pro-development community and the public consultation process and planning policy anti-development community was dissatisfaction development that will be undertaken as part of the with the community panel process. The panel found process to declare the Surf Coast a distinctive area that the community panel process resulted in a and landscape and subsequently prepare a SPP. disjointed PSP intending to deliver an aspirational outcome not entirely based on planning rigour and that the PSP required changes before being approved.

The panel recommended Amendment C114 be approved with changes addressing issues including the western growth boundary, the road network, stormwater and drainage, biodiversity, open space, dwelling density and neighbourhood and local centres.

With the issue of dwelling density, the panel took the view that the exhibited dwelling density of 1,781 lots from a net developable area of 184 ha — 9.65 dwellings per net developable hectare — was an inappropriate interpretation of Surf Coast Planning Scheme Clause 21.08 and Clause 22.09 and that higher densities can be achieved without eroding the environmental and topographic setting or the area.

Council considered Amendment C114 in March 2017 when it made the panel’s report public, and it required council officers to do further work on issues the panel identified. In response to the panel’s dwelling-density recommendations, the Council modified the adopted PSP to provide 1,939 lots with

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Appendix 3: Managing bushfire risk

Bushfire risk has been considered when preparing this background paper, so that it aligns with the policy requirements of Clause 13.02-1S Bushfire Planning in the Surf Coast and City of Greater Geelong planning schemes.

This appendix provides a preliminary desktop bushfire hazard landscape assessment of the proposed approach to settlement planning for Torquay–Jan Juc, with a focus on the three greenfield areas in Torquay–Jan Juc discussed in Part B of this background paper.

Based on this preliminary assessment, three greenfield areas are not likely to result in a net increase in risk to existing and future residents, property and community infrastructure, subject to the application of appropriate bushfire protection measures.

This preliminary assessment will be used as the basis for further discussions with the Country Fire Authority, Surf Coast Shire and Greater Geelong City Council, so any implementation of the proposed approach to settlement planning for Torquay–Jan Juc fully considers and addresses the relevant bushfire risk.

Clause 13.02-1S Bushfire planning

The policy in Clause 13.02-1S must be applied in all planning and decision-making under the Act relating to land that is:

• within a designated bushfire-prone area

• subject to a Bushfire Management Overlay or

• proposed to be used or developed in a way that may create a bushfire hazard.

Figure 6 shows that most of the declared area is within a bushfire-prone area, and some areas are also subject to a Bushfire Management Overlay.

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Figure 6: Bushfire-prone areas, Bushfire Management Overlay

Source: DELWP

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A key policy in Clause 13.02-1S is that the protection of human life is prioritised over all other policy considerations. This means that landscape considerations will not override the management of bushfire risk in decision-making throughout the planning process.

Greenfield areas

Three potential greenfield areas on the edge of Torquay–Jan Juc are discussed in Part B of this background paper and are shown in Figure 7. They are the Spring Creek Future Residential Area, Messmate Road Future Residential Area and Torquay North East Future Residential Investigation Area.

The sites can generally be characterised as a lower-risk landscape (Landscape Type 2) with some Landscape Type 3 descriptors.

In the event of a bushfire scenario, the Spring Creek Future Residential Area may experience bushfire that approaches from the west and potentially a fire run from the vegetation adjacent to the area that flows through the site from the west. The Messmate Road Future Residential Area and Torquay North East Future Residential Investigation Area sites may experience a bushfire approaching from more than one direction.

Figure 7: Greenfield areas

Source: DELWP

Access to safer areas

No designated neighbourhood safer spaces are near the sites. However, all are near areas that meet the criteria as BAL (Bushfire Attack Level) Low locations, being sporting and recreational areas easily accessible on foot via the existing road network, within about 1 km of all sites.

It is assumed that grassland within the sites would be reduced as a result of residential development, lessening the amount of flammable vegetation within these areas. The staging of development will need to consider the management of existing flammable vegetation.

The wider area around the sites is largely zoned Farming Zone and used for agricultural purposes. This landscape is highly modified and can be characterised as grassland with scattered patches of shrub and woodland.

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Road network

Figure 8 shows that all three areas are well located to access and egress points of the surrounding primary road network, being close to the Surf Coast Highway, radiating north from Torquay–Jan Juc and Anglesea Road and Hendy Main Road to the west.

Proximity to these main roads would allow for relatively safe evacuation and access into the greenfield areas for fire services during a bushfire event.

Figure 8: Key access and egress points, road network

Source: DELWP

Bushfire behaviour

The sites are all within about 1.5 km of the coast: Bass is to the east of the sites beyond Torquay–Jan Juc. As a result, coastal winds may influence bushfire behaviour.

The key exception to the general landscape character around the sites is the heavily vegetated Great Otway National Park to the south-west, which is the most likely approach for bushfires to Torquay–Jan Juc. This is significant given the south-westerly winds that can occur in coastal areas.

Overall, the sites are in a relatively low-risk landscape. However, proximity to the Great Otway National Park may result in the sites being subject to more significant fire behaviour, as well as ember attack, should a fire start within this area. This may be exacerbated by coastal winds.

Figure 9 and Figure 10 show the bushfire hazard landscape within 20 km and 75 km of the site.

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Figure 9: Bushfire hazard landscape 20 km around the sites

Source: DELWP

Figure 10: Bushfire hazard landscape 75 km around the sites

Note: The dominant wind directions are shown top-right and the dominant coastal winds at the lower-right.

Source: DELWP

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Past bushfire activity roads should be considered or alternate measures around all sites. Additional buffer zones may be On 14 March 1940, The Argus reported that Torquay– required to achieve the necessary setbacks to Jan Juc was affected by a significant bushfire event, identified woodland vegetation, for example with one person killed and 57 houses and several vegetation along the Spring Creek riparian corridor. places of business destroyed. It is beyond the scope of this assessment to consider bushfire risk at the The subdivision and road layout of the greenfield time or the degree to which it may have changed areas provide an opportunity to design the since by land clearing, development, planned neighbourhoods in a manner which offsets any burning or bushfires. localised risk of bushfire. Design options for consideration include the incorporation of The 1983 Ash Wednesday bushfires affected nearby neighbourhood safer spaces, providing greater towns such as Anglesea but stopped short of access to BAL Low spaces for residents, open space Torquay–Jan Juc. on the settlement interface and excluding development from the setback area. Similarly, the Torquay–Jan Juc was not significantly affected by design of the greenfield areas should ensure a major bushfires in the region during the 2015–16 permeable pedestrian network to ensure easy bushfire season. News reports indicate that access to BAL Low locations on foot. residents from Lorne, Wye River and Cumberland River were evacuated to Torquay–Jan Juc due to The design of access and egress points provides bushfire threat and destruction along the Great further opportunities to ensure that people living Ocean Road. close to the settlement interface can move away from a potential bushfire hazard to a place of Site-based exposure relative safety. These measures include:

Clause 13.02 provides policy directions for planning • ensuring roads leading away from the hazard are authorities about the level of acceptable exposure no more than 120 m apart on average for new development enabled by a planning scheme amendment. Maximum rates of exposure equate to • designing road widths to meet the requirements of BAL 12.5 or a radiant heat flux of less than 12.5 kW/ planning schemes and fire authorities m2. • providing multiple roads: at least two different The sites are largely surrounded by vegetation roads leading away from the hazard edge should classed as grassland. Based on this vegetation be available to each lot category and the generally flat topography, • ensuring travel to and from a location is not development would need to be set back from the alongside a bushfire hazard and providing multiple bushfire hazard by approximately 19 m. This distance would increase to 33 m in isolated areas adjacent to woodland vegetation.

All three sites could be exposed to embers, with the greatest exposure likely in the Spring Creek Future Residential Area and Messmate Road Future Residential Area. Medium-distance spotting (1–5 km) and long-distance spotting from the forested areas to the south-west and west is likely under severe, extreme and code red conditions from major bushfires in the area.

Potential mitigation measures

To offset any potential bushfire risk as a result of the greenfield areas, the incorporation of appropriate bushfire protection measures into the design response are recommended for further investigation.

New residential development facilitated by a new strategic planning policy or planning scheme amendment is required to be set back to achieve a radiant heat exposure benchmark of 12.5 kW/m2. To incorporate the setbacks noted above, perimeter

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access and egress routes within developed areas to minimise the use of perimeter roads in the event of a bushfire

• effectively connecting roads to the broader road network within the settlement.

The existing application of the Bushfire Management Overlay is not proposed to be altered and will continue to play a role in managing bushfire risk, where applicable.

Alternative locations for development

The proposed greenfield areas direct development and population growth to areas adjacent to the established Torquay–Jan Juc settlement. When considering the landscape risk context, these areas are relatively safer than communities within a 50-km radius (such as Bellbrae and Anglesea).

While the greenfield areas would shift the boundary of development, the new interface with nearby vegetation would not significantly increase the risk of bushfire to the Torquay– Jan Juc township, compared to the existing boundary. Regarding the potential mitigation measures explained in the section above, there is an opportunity to design bushfire measures to the new interface residential areas, improving overall protection.

Spring Creek Future Residential Area

Figure 11 shows the Spring Creek Future Residential Area, which is located to the west of the existing Torquay–Jan Juc settlement on land currently zoned Urban Growth Zone. The Spring Creek Future Residential Area is not subject to the Bushfire Management Overlay, but it is entirely within a designated bushfire-prone area.

Figure 11: Spring Creek Future Residential Area

Source: DELWP

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Bushfire hazard site assessment

• Vegetation within 150 m of the Spring Creek Future Residential Area site can be assessed as follows.

• There is relatively low risk from bushfire attack from the north, east and immediate south of the site, these being existing residential areas of Torquay–Jan Juc. Torquay– Jan Juc generally contains isolated trees and patches of vegetation, but relevant to this site is vegetation associated with Spring Creek to the east.

• Vegetation within the site itself and beyond it to the west and south-west is generally characterised as grassland with scattered patches of shrub and woodland.

• The woodland vegetation is most notably associated with the Spring Creek riparian corridor, running from the west through the site.

• There is a relatively large patch of vegetation (about 7 ha) that can be classified as shrubland/woodland in the southern part of the site.

• The site contains some areas of low, undulating hills, sloping down toward Spring Creek which runs from west to east through the site. Generally, the landform slopes upward from within the site to the open areas to the west and south-west. These slopes will cause only a moderate increase in bushfire risk.

Figure 12: Spring Creek Future Residential Area, bushfire hazard landscape within 2 km

Source: DELWP

Access to safer areas

The site has access to an area that meets the criteria as a BAL Low location, being the Spring Creek Reserve about 1 km to the east of the site. As an existing recreational area, the Spring Creek Reserve is managed in a minimum fuel condition, and there is sufficient distance to protect people from direct flame or harmful levels of radiant heat.

The Spring Creek Reserve is accessible via an existing, permeable pedestrian network, which Figure 13 shows. While a route to this safer area requires crossing Spring Creek to the east of the site, there are two pedestrian bridges and a road bridge to the immediate south of the Spring Creek Reserve area. There is a third pedestrian bridge to the north of this safer space, linked to the Bowman Track.

108 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Figure 13: Spring Creek Future Residential Area, access to a Bushfire Attack Level Low location (Spring Creek Reserve)

Source: DELWP

Messmate Road Future Residential Area

Figure 14 shows the proposed Messmate Road Future Residential Area, which is located to the north-west of the existing Torquay–Jan Juc township on land currently zoned Farming Zone and Public Use Zone. The Messmate Road Future Residential Area does not directly abut the established Torquay–Jan Juc township but interfaces with the relatively recently developed area between Grossmans Road and Coombes Road, north-west of Torquay.

The land between the Messmate Road Future Residential Area and Torquay–Jan Juc contains the Grasstree Park Nature Reserve, commercial and industrial uses and largely vacant land zoned Farming Zone. The Messmate Road Future Residential Area is partially subject to a Bushfire Management Overlay and it is entirely within a bushfire-prone area.

Figure 14: Messmate Road Future Residential Area

Source: DELWP

Surf Coast Settlement Background Paper 109 Department of Environment, Land, Water and Planning

Bushfire hazard site assessment

Vegetation within 150 m of the Messmate Road Future Residential Area can be assessed as follows.

• There is a relatively low risk of bushfire attack from the south of the site, being an existing residential area of Torquay–Jan Juc. Torquay– Jan Juc generally contains isolated trees and patches of vegetation.

• Vegetation within the site itself and beyond it to the west and north- west is generally characterised as grassland with scattered patches of shrub and woodland.

• The Grasstree Park Nature Reserve, containing grassland, shrubland and patches of woodland, is located immediately east of the site.

• Three patches of woodland vegetation of about 3–5 ha each are located in and around the southern portion of the site.

The topography of the site is largely flat.

Figure 15: Messmate Road Future Residential Area, bushfire hazard landscape within 2 km

Source: DELWP

Access to safer areas

Figure 16 shows the site has access to areas that meets the criteria of a BAL Low location, being the Banyul-Warru Fields / Grenville Oval and Quay Reserve.

These areas are existing recreational sites, managed in a minimum fuel condition, with sufficient distance to protect people from direct flame or harmful levels of radiant heat.

Pedestrian access directly to these BAL Low locations may be relatively limited. Existing access to these areas is best via the road network, which Figure 16 shows.

As Figure 17 shows, there are opportunities to enhance potential pedestrian thoroughfares to directly link the site to the BAL Low locations, particularly given that the land to the immediate east of the site across Messmate Road Future Residential Area is largely undeveloped. This should be considered as part of ongoing strategic planning for the area.

110 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Figure 16: Messmate Road Future Residential Area, road network to Bushfire Attack Level Low locations (Banyul-Warru Fields / Grenville Oval and Quay Reserve)

Source: DELWP

Figure 17: Messmate Road Future Residential Area, potential pedestrian network to Low Bushfire Attack Level locations

Source: DELWP

Surf Coast Settlement Background Paper 111 Department of Environment, Land, Water and Planning

Torquay North-East

Figure 18 shows the Torquay North East Future Residential Investigation Area, which is located to the north-east of the existing Torquay–Jan Juc township on land currently Farming Zone. The area is not subject to the Bushfire Management Overlay, and it is entirely within a bushfire-prone area.

Figure 18: Torquay North East Future Residential Investigation Area

Source: DELWP

Bushfire Hazard Site Assessment

Vegetation within 150 m of the Torquay North East Future Residential Investigation Area can be assessed as follows.

• There is a relatively low risk of bushfire attack from the south-east of the site, being an existing residential area of Torquay–Jan Juc. Torquay–Jan Juc generally contains isolated trees and patches of vegetation.

• Vegetation within the site itself and beyond it to the north is generally characterised as grassland with scattered patches of shrub and woodland.

• The Breamlea Flora and Fauna Reserve, containing grassland, shrubland and patches of woodland, is located to the east of the site.

The topography of the site is largely flat.

112 Surf Coast Settlement Background Paper Department of Environment, Land, Water and Planning

Figure 19: Torquay North East Future Residential Investigation Area, bushfire hazard landscape within 2 km

Source: DELWP

Access to safer areas

The site has access to an area that meets the criteria of a BAL Low location, being Quay Reserve, about 830 m to the south of the site. As an existing recreational area, Quay Reserve is managed in a minimum fuel condition, and there is sufficient distance to protect people from direct flame or harmful levels of radiant heat.

Figure 20 and Figure 21 show that Quay Reserve is accessible via an existing, permeable pedestrian network.

Figure 20: Torquay North East Future Residential Investigation Area, access to a Bushfire Attack Level Low location (Quay Reserve)

Source: DELWP

Surf Coast Settlement Background Paper 113 Department of Environment, Land, Water and Planning

Figure 21: New street network surrounding Quay Reserve

Source: Google Maps, 2020.

Conclusion

Based on this preliminary assessment, the three greenfield areas are not likely to result in a net increase in risk to existing and future residents, property and community infrastructure, subject to the application of appropriate bushfire protection measures.

While there is potential for some relatively minor and localised increases in bushfire risk, bushfire protection measures can be practically applied to address the level of bushfire risk. Additionally, the development of these greenfield areas would direct development away from areas subject to higher bushfire risk within the region (such as Bellbrae and Anglesea).

As this is a preliminary assessment, the Country Fire Authority (as the relevant fire authority) and the Surf Coast Shire and the City of Greater Geelong (as the relevant planning authorities) will continue to be consulted throughout the preparation and implementation of the Surf Coast Statement of Planning Policy.

114 Surf Coast Settlement Background Paper delwp.vic.gov.au