1989
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Upper Yarra Valley And Dandenong Ranges Authority
REPORT ON THE RE-INVESTIGATION OF THE REGION
May, 1989
MINISTRY FOR PLANNING AND ENVIRONMENT LIBRARY ·~ '1
REPORT ON THE RE-INVESTIGA TON OF THE REGION
Table of Contents
Page No.
Chairman's Foreword ......
1. Introduction and Background ...... 3
2. Government Policy Affecting Planning in the Upper Yarra Valley and Dandenong Ranges Region ...... 9
3. Demographic Profile ...... 17
4. Residential ...... 27
5. Rural Residentiql ...... ,...... 37
6. Non-Urban Land ...... 45
7. Public Land ...... 53 , ..,,. 8 . Retail and Commercial Centres ...... 57
9. Manufacturing, Extractive Industry and Mining ...... 71
10. Transport Issues Relating to Future Development in the Region ...... 79
11. Recreation and Tourism ...... 85
12. Water Resources ...... · ...... 93
13. Reticulated Services ...... 97
14. Sites of Significance 105
15. Land Hazards ...... 111
16. Special Study Areas ...... 121
17. Identification of the Extent of Implementation of Existing Policies of the Regional Strategy Plan ...... 125 .. Bibliography ...... 133 \, Chairman's Foreword
This report presents an overview of an extensive re-investigation of the Region carried out by the Upper Yarra Valley and Dandenong Ranges Authority as part of a statutory requirement specified in the Upper Yarra Valley and Dandenong Ranges Authority Act (1976).
The Authority has resolved to forward the report to the Minister for Planning and Environment as the report on the re-investigation of the Region.
The original studies which were carried out prior to the preparation of the current Regional Strategy Plan ( 1982) were conducted in the late 1970's. Since that time there have been many changes in the Region. This re-investigation of the Region has been conducted to identify these changes and their impacts.
Much of the earlier research is still relevant and can continue to be used as a basis for planning. Other information required only minor updating. There still remained, however, a significant amount of information gathering and analysis to enable an informed and wide-ranging review of the strategic planning directions for the Region to take place.
This overview reports on the major themes emerging from the research. It should be used as a major source of information to assist in the review of the planning policies of the Region. More detailed information on a range of topics is available at the office of the Authority and in libraries throughout the Region.
I look forward to your ·critically constructive comments on the report and to your further . participation in the determination of those regional policies that require review. Written comments will be received at the Authority's office, 7 John Street (P.O. Box 104) Lilydale 3140 up until Friday 7th July 1989.
CR. BRIAN GANSTER CHAIRMAN
1 1.0 INTRODUCTION AND BACKGROUND
1.1 INTENT OF THIS REPORT
This report presents a summary of the principal findings of the re-investigation of the Upper Yarra Valley and Dandenong Ranges Region which was undertaken between 1986 and 1989. The report also discusses the implications for planning policy arising from the re-investigation and presents planning policy options for consideration.
1.2 THE REGION
The Upper Yarra Valley and Dandenong Ranges Region (the Region) is located on and beyond the eastern fringe of metropolitan Melbourne and comprises the municipal districts of the Shires of Healesville, Lillydale, Sherbrooke and Upper Yarra. The Region covers an area of approximately 2,700 square kilometres and extends from Wonga Park, Mooroolbark, Kilsyth, Upper Ferntree Gully and Lysterfield in the west to Matlock and the upper Thompson River valley in the east; from Toolangi in the north to Narre Warren East and Emerald in the south. (see Map 1).
The Region's population as at June 1988 was approximately 140,250 persons (Henshall Hansen Associates, 1989).
The principal physical features of the Region are the Yarra Valley (which 'winds' through the centre of the Region, generally from east to west), the Dandenong Ranges near its western flank and the higher Great Dividing Range in the north and east.
Approximately 73 percent of the Region's area (or approximately 1970 sq.km.) consists of Public Land in various forms. Extensive areas of Public Land are in the east of the Region, beyond Healesville and Warburton, and comprise most of Melbourne's forested water supply catchments and State Forest. Smaller areas of Public Land occur throughout the western part of the Region.
Rural or non-urban private land comprises approximately 24 percent of the Region's area (or approximately 648 sq.km.). This land is located in the west of the Region and is predominantly used for grazing purposes but also supports significant intensive agricul tural industry, particularly in the red soils area around Silvan, Wandin East and Monbulk. Large tracts of privately owned bushland also exist throughout the Region.
Urban land constitutes approximately 3 percent of the Region's area (or about 81 sq.km). The main concentrations of urban development are adjacent to the Region's western boundary and include the suburban areas of Chirnside Park, Mooroolbark, Lilydale, Kilsyth and Montrose and the urban corridor between Upper Ferntree Gully and Belgrave. The Region's other concentrations of urban development are in separate townships such as Healesville, Yarra Glen, Woori Yallock, Yarra Junction and Warburton. Approximately \ 66 percent of the Region's population resides in these urban areas (Upper Yarra Valley and Dandenong Ranges Authority, 1988 a).
--1 The Region is important to Melbourne and the State of Victoria because it provides water, agricultural and forest products and an extensive range of recreational and tourism .. opportunities. The natural beauty of its landscapes is appreciated by both residents and visitors. Conservation is a vital element in planning as the Region contains a great diversity of vegetation types, land forms, land use, scenic and historic landscapes. These J
3 provide a wide range of habitats for birds, animals and plants (many of which are rare or endangered) and sites of cultural, educational and recreational value.
1.3 THE AUTHORITY
The Upper Yarra Valley and Dandenong Ranges Authority (the Authority) was formed in April 1977 after several years of public discussion and pressure for greater co-ordination of planning and local participation in the management of this significant area.
The Authority operates under the provisions of the Upper Yarra Valley and Dandenong Ranges Authority Act The Act provides for a fifteen member Authority comprising: (i) two Councillors nominated from each of the four municipal Councils within the Region; (ii) three residents of the Region appointed by the Governor-in-Council and nominated respectively by the primary produce organisations, conservation organisations and trading/commercial organisations; (iii) three members appointed by the Governor-in-Council and nominated by the Min isters for Conservation Forests and Lands, Planning and Environment and Commu nity Services respectively; and (iv) one member appointed by the Governor-in-Council and nominated by the Melbourne and Metropolitan Board of Works. The Act specifies that the principal functions of the Authority shall be to: (i) carry out planning investigations and prepare regional strategy plans for the Region; (ii) in preparing a regional strategy plan to have regard to any approved statements of planning policy affecting the Region; and (iii) co-ordinate the implementation of an approved regional strategy plan. 1.4 THE REGIONAL STRATEGY PLAN The first investigation of the Region, for preparation of the current Regional Strategy Plan, was carried out during 1978 and 1979. The current Regional Strategy Plan was developed and refined between 1979 and 1982. It was approved by the State Government and became legally operative in October, 1982. The purpose of the Regional Strategy Plan is to ·provide clear direction for the allocation of public and private resources in the Region so that the needs of local residents are met, while ensuring that State and regional aims are satisfied. The Plan is intended to provide the necessary link between the broad principles of State Government planning policies (in particular Statement of Planning Policy No.3) and the specific planning controls of Councils within the Region. Specific policies for the protection of natural, agricultural and cultural environments, for planning future developm~nts, and for increasing public awareness of the special fea tures and character of the· Region are included in the Regional Strategy Plan. 4 Locality Pl:an ~ ~ UYV & ORA REGION MELBOURNE METROPOLITAN PLANNING AREA VICTORIA Urban Land Non Urban Land I I Public Land I < ....-...... ~. ~.. o· .. ~ .. ~..=-iiiii...... ,.. - U,,11 TAU A VAUIY AHO DAHDEHOHG UNGH AUTHO•llY The Region Map 1 1.5 RE-INVESTIGATION REQUIREMENTS OF THE AUTHORITY'S ACT The Authority's Act requires the periodic review of the planning situation in the Region and, if necessary, the updating of the Regional Strategy Plan. It states: .. "The Authority shall re-investigate the region between four and six years after the approval of a Regional Strategy Plan ... and shall if necessary prepare and submit to the Minister an amending Regional Strategy Plan .... " As the current Regional Strategy Plan was approved in October 1982 the re-investigation of the Region was required to commence at or soon after October 1986. This comprehen sive re-investigation was timely as by 1986 it was evident that many aspects of the Region had changed since the Regional Strategy Plan was prepared. 1.6 THE PROCESS OF RE-INVESTIGATING THE REGION The Authority commenced the process of re-investigating the Region late in 1986. The latter part of 1986 and most of 1987 was spent in. determining the most appropriate parameters of the re-investigation. This involved addressing the following questions: • what are the main issues requiring re-investigation? • how can the re-investigation be most effectively and efficiently undertaken? • how can it be funded? • what should be the 'primary purpose', 'objectives' and 'tasks' for each re investigation study? In December 1987 the Authority adopted a sta~ement of 'primary purpose' and 'study ot:>jectives' for each of seven core re-investigation studies: • urban and rural residential land, • retail and commercial centres, • agriculture, • industry, • sites of botanical and zoological significance, • land hazards, and • extent of implementation of existing policies of the Regional Strategy Plan. Although public land forms a significant proportion of the Region's area it was decided not to undertake an extensive study of the Region's public land as this is the subject of a separate investigation being undertaken by the Land Conservation Council (L.C.C.). The L.C.C.'s task is to provide State Government with recommendations on the future use of public land in Victoria. The L.C.C. is currently undertaking an extensive investigation for a review of the uses of public .land within Melbourne Study Area District 2. (which includes all of the Upper Yarra Valley and Dandenong Ranges Region). A report on this investigation is expected in late 1990. There has been a conscious effort to avoid duplication of research in the investigations of the two organisations. The Authority's re-investigation has therefore concentrated on private land, although the extent of implementation of existing public land policies of the Regional Strategy Plan has been examined. The Authority does however need to participate in the L.C.C.'s review. The availability of funding was a major constraint during deliberations on the extent of research to be undertaken. However a major impetus to the re-investigation process 5 r . occurred in February 1988 when the State Government agreed to fund part of the re-investigation of the Region. Because of the large size and scope of several of the seven core re-investigation topics listed above (particularly urban and rural residential land) it was necessary to undertake many separate component studies. During 1988 and early 1989 the following twenty seven reports were compiled on re-investigation studies. 1. Urban and Rural Residential Land Study: Explanatory Report. 2. Population and Housing Characteristics of ·the Upper Yarra Valley and Dandenong Ranges Region: 1976, 1981 and 1986. 3. Land Hazards 4. Capacity for Additional Residential Development in the Upper Yarra Valley and Dandenong Ranges Region as at 31st March, 1988. 5. Report on Government Policy Affecting Planning in the Upper Yarra Valley and Dandenong Ranges Region. 6. Overview of Housing Needs in the Upper Yarra Valley and Dandenong Ranges Region: A Consultation and Literature Review. 7. Survey of Real Estate Agents Operating in the Upper Yarra Valley and Dandenong Ranges Region. 8. Transport Issues within the Upper Yarra Valley and Dandenong Ranges Region. 9. Community Services· in the Upper Yarra Valley and Dandenong Ranges Region: A Consultation with Community Service Providers. 10. Reticulated Services in the Upper Yarra Valley and Dandenong Ranges Region. 11. Overview of Physical Constraints to Development Adjacent to Urban Pol icy Areas in the Upper Yarra Valley. 12. Opportunities and Constraints for Urban Expansion in the Upper Yarra Valley. 13. Settlement Patterns in the Upper Yarra Valley and Dandenong Ranges Region to the Year 2001 (prepared by Henshall Hansen Associates). 14. Retail and Commercial Centres Study 1988. Upper Yarra Valley and Dandenong Ranges Region (prepared by Urban Spatial and Economic Consultants Pty. Ltd. in conjunction with Econsult Australia Pty.Ltd.). 15. Rural Study 1988 Upper Yarra and Dandenong Ranges Region. (prepared by R.N. Phillips and Associates Pty. Ltd. in conjunction with W.J. Gittins & Associates Pty. Ltd. and Dennis Williamson: Scenic Spectrums). 16. Planning for Public Land in the Upper Yarra Valley and Dandenong Ranges Region. 17. Conservation of Sites and Structures of Historical and Architectural Significance in the Upper Yarra Valley and Dandenong Ranges Region November, 1988. 18. Population and Housing in Urban, Landscape Living and Rural Residential Policy Areas of the Regional Strategy Plan at 1986 Census. 19. Issues Raised by Submissions on Re-Investigation of Region. 20. Rural Residential Development - Issues Paper 21. Rural Residential Landscape Compatibility Study of the Upper Yarra Valley and Dandenong Ranges Region (prepared by Scenic Spectrums). 6 ------J 22. Industrial Study of the Upper Yarra Valley and Dandenong Ranges Region. (prepared by Wilson Sayer Core Pty. Ltd.). 23. Identification of the Extent of Implementation of Existing Policies of the Regional Strategy Plan. 24. Report on the 'Statutory' Processes for the Review and Amendment of the Regional Strategy Plan. 25. Study of Sites of Zoological Significance in the Upper Yarra Valley and Dandenong Ranges Region (prepared by Arthur Rylah Institute for Environmental Research: refer to Mansergh et. al.). 26. Study of Sites of Botanical Significance in the Upper Yarra Valley and Dandenong Ranges Region (prepared by Ecological Horticulture Pty.Ltd. in conjunction with Botanical Survey and Vegetation Management: refer to McMahon et. al.). 27. Landslip and Subsidence Risk Study (prepared by Coffey & Partners Pty. Ltd.) Eight of these studies were undertaken by various specialist consultants as indicated above, and the other nineteen studies were completed by Authority staff. 1. 7 HOW TO INTERPRET THIS REPORT The following chapters of this report present a summary of the principal findings of the re-investigation, of issues identified, and of implications for the planning policies of the Regional Strategy Plan. Following each chapter, planning policy options and other actions relating to the issues identified are put forward. The rationale for derivation of these options and actions is contained in the discussion of issues and policy implications within the particular chapter, and therefore the options and proposed actions should be read in conjunction with that chapter. The policy options and actions are all feasible and are not necessarily mutually exclusive. 7 2.0 GOVERNMENT POLICY AFFECTING PLANNING IN THE UPPER Y ARRA VALLEY & DANDENONG RANGES REGION 2.1 INTRODUCTION The Victorian Government has formulated six policies of particular interest which directly impact on the Region. Four of these apply to Victoria as a whole, the fifth is directed to the planning of the Melbourne metropolitan area and the sixth is specifically directed to the Upper Yarra Valley and Dandenong Ranges Region. The statewide policies have been developed as three major strategies (Victorian Con servation Strategy, Victorian Economic Strategy and Victorian Social Justice Strategy) and a Statement of Planning Policy relating to Victoria's highways (Statement of Planning Policy No. 5 - Highway Areas). In recognition of these statewide policies the Government prepared policies for metropoli tan Melbourne and these are summarized in a document entitled 'Shaping Melbourne's Future' which was released in August, 1987 The Government Policy specifically directed to the Region is contained within Statement of Planning Policy No. 3 (Upper Yarra Valley and Dandenong Ranges), which was originally approved in 1971 and reviewed in 1979. This Statement sets the policy context within which land use change should occur in the Region. It is now incorporated in the Regional section of each of the four Planning Schemes affecting the Region (Healesville, Lillydale, Sherbrooke and Upper Yarra) and in the Regional Strategy Plan ( 1982). The following policies of Government provide a context within which the Region's strategic issues are to be addressed and regional policy formulated. 2.2 VICTORIAN CONSERVATION STRATEGY In June 1987 the Victorian Government released a Conservation Strategy for Victoria (Victorian Government, June 1987) in recognition· of the fact that Victoria is facing serious environmental problems that must be overcome "both for our own sakes and to ensure that our children and future generations inherit a land worth living in". The five main objectives of the State Conservation Strategy are to: • maintain essential ecological processes and life support systems • preserve genetic diversity • ensure the sustainable use of renewable resources • ensure the wise use of non-renewable resources • protect natural areas and ecosystems for the non-material needs of society The strategy has eight priority programs to tackle the eighteen main conservation issues identified: • Restoring the Land • Flora and Fauna • Protecting the Forests 9 • Reviving Rivers, Coasts and Wetland • Using Resources Wisely • Enhancing Our Cities • Controlling Pollution and Hazardous Chemicals • Environmental Education and Community Involvement The resources of the Region have long been recognised as environmental assets. The objectives and the programmes give emphasis to many activities that have already been in progress for a number of years. In most cases, the implementation of the State Conservation Strategy in the Region will require a determination to continue with work already started, a revitalization of efforts where progress has been slow, and a vigilance in the detection of new problems as they emerge. 2.3 ECONOMIC STRATEGY FOR VICTORIA The Government of Victoria has released an Economic Strategy for the State in a series of Policy documents starting with "Victoria, The Next Step" in 1984 and the most recent being "Victoria Trading on Achievement" in 1988. The economic strategy is an evolving concept which identifies the key economic issues to be addressed to enable Victoria to become a competitive trading economy in a world of rapid technological change. It is now widely accepted that Victoria's economic future depends on export-led growth based on knowledge and skill, and the ambition of many businesses is now directed at world markets. The principle theme of the development of the economic strategy is the need to respond '·./ urgently and in a co-ordinated fashion to the dramatic changes occurring in the interna tional ·economy. In the context of ongoing development of the economic strategy, the Government has identified a number of new initiatives and programs to give effect to above-mentioned themes: • Growth Through Research and Technology • Venture Capital • Information and Communications Technology • Export Growth • Urban Structure and Development • Building the Knowledge Base • The Impact of Information and Communications Technology While the environmental attributes of the Region have been well documented, there has been less emphasis on the consideration of the Region as an economic entity. Neverthe less, it is important to recognise that the Region's resources can be used in many ways which provide economic benefits and which are consistent with environmental and other objectives. 2.4 VICTORIA'S SOCIAL JUSTICE STRATEGY The third major strategy of the Victorian Government is the Social Justice Strategy (Victorian Government, 1987). In encouraging sustained economic growth, the Govern- 10 ment's ultimate interest is the well-being of people. So where it creates new opportu nities, the Government also needs to ensure that these are shared by the whole community. While the Government is concerned with the quality of life of all Victorians, the most pressing issue is the improvement of the position of those who are most disadvantaged. Social justice is concerned with principles of fairness, the distribution of economic and social resources, fair access to goods and services, opportunities for participation and ·- the protection of people's rights. Four priority issues have been identified:· • children in poverty; • long term unemployment; • dignity and security for older people; and • people's rights. While priority will be given to these four issues, the Government will continue it's work in other social policy areas. · The four major Social Justice Objectives are: • Reducing disadvantage caused by unequal access to economic resources and power. • Increasing access to essential goods and services according to need. • Expanding opportunities for genuine participation by all Victorians in· decisions which affect their I ives. • Protecting, extending and ensuring the effective exercise of equal, legal, industrial and political rights. The purpose of the Strategy is to ensure that when Government agencies allocate resources or plan initiatives, they do so with social justice criteria in mind - that they consider the impact of what they are doing in terms of creating opportunities for disadvantaged people, extending access and participation, and protecting rights. 2.5 ST A TEMENT OF PLANNING POLICY N0.5 (HIGHWAY AREAS) This policy statement of Government (Victorian Government, 1973) directs that the planning of highways and the planning and control of land use and development in the areas through which they pass shall be co-ordinated and undertaken in an integrated operation. Use and development of land in the vicinity of a highway is to be planned and regulated so as to avoid detriment to the levels of service, safety and amenity desirable for that highway. New highways are to be located and designed to minimise detriment to the environment and disruption of residential communities and their amenity. The plan ning of highways and of areas in their vicinity is to aim to achieve standards of visual amenity commensurate with the importance of the highway. In this Region, such a policy acts as a basis for considering developments along main roads, to ensure effective and efficient use of the roads and the maintenance of amenity in their vicinity. 11 2.6 "SHAPING MELBOURNE'S FUTURE"; THE GOVERNMENT'S METRO POLITAN POLICY. AUGUST 1987. 2.6.1 INTRODUCTION In August, 1987 the Minister for Planning and Environment released the State Govern ment's new Metropolitan Policy. The policy is contained in a publication entitled "Shaping Melbourne's Future". The document sets out a strategy for managing the development of Melbourne over the next decade. The policy sets out measures for achieving objectives in each of nine main policy themes: • urban consolidation • future outward growth • activity centres and office and retailing policies • employment distribution • infrastructure for commercial and industrial development • accessibility and transport services • housing choice and affordability • delivery of human services • environmental improvements 2.6.2 ELEMENTS OF THE METROPOLITAN POLICY OF RELEVANCE TO THIS REGION ·'M Even with the new urban consolidation policy of increasing residential densities in existing urban areas Melbourne will still grow ou!wards. The Government will continue to concentrate growth in established corridors, but there are major I imitations on urban growth in some corridors, including the Lilydale ·corridor: " ... There are environmentally sensitive areas on the edge of the Lilydale corridor(the Yarra River and the Dandenongs) where residential expansion is restricted to ensure protection for water quality and retention of the natural environment. Other envi ronmentally sensitive areas include the Mornington Peninsula and Macedon Ranges. These areas will remain protected by Statements of Planning Policy." (Victorian Government, August 1987, p37) Measures to implement these policies include the continuation of the restriction of further residential expansion in the area covered by Statement of Planning Policy No 3. 2. 7 STATEMENT OF PLANNING POLICY NO. 3 2. 7 .1 INTRODUCTION The Upper Yarra Valley and Dandenong Ranges .. have long been recognised as areas of specific significance. In 1971 the State Government formalized it's attitude to each area by the statutory approval of Statements of Planning Policy (No.'s 3 & 4) which specified the planning objectives for the areas and defined various policies to achieve those objectives. By 1976 the Government ·had decided that in order to implement the Statements of Planning Policy a regional planning body· would need to be set up. The Upper Yarra 12 Valley and Dandenong Ranges Authority was subsequently established l;>y Act of Par liament with the principal objective being 'to ensure increased protection of the special features and character of the area'. One of the first tasks of the Authority was to prepare a regional strategy plan and the Government assisted the Authority by clarifying and re-inforcing it's policies as they applied to the area. In 1979 a revised Statement of Planning Policy for both the Upper Yarra Valley and Dandenong Ranges (Statement of Planning Policy No. 3: Upper Yarra .. Valley and Dandenong Ranges) was gazetted and this then formed the basis for planning in the area and, in particular, for formulating the Regional Strategy Plan. The policy recognises the special qualities of the Policy area and the need for appro priate, co-ordinated planning to conserve, protect and promote the well-being of the communities of the area and maintain amenity for the people who use it for recreation. This policy aims to contain urban development to a scale compatible with conservation of the area and with high standards of amenity. It aims at balanced planning for: • hamlets and townships of a nature compatible with the physical environment; • primary production; • water harvesting, storage and diversion; and • timber production. It generally aims to retain and improve, where possible: • the ~menity of the area for present and future residents, the farming community and other uses; • conservation of it's natural resources, • scenic and bushland environments for recreation and conservation; and • other landscapes of value as features of the State of Victoria, and more particularly the Melbourne region. · Two issues of major concern in the policy are the environmental considerations and the urban containment elements. 2.7.2 ENVIRONMENTAL CONSIDERATIONS The Statement of Planning Policy identifies the wide range of. factors that demand sensible and sensitive planning controls in the Policy Area. These factors include: • Landscapes of outstanding local, regional and state significance and the importance of the Yarra River as an attribute to the character of the Melbourne region and the Metropolis. • The abounding natural resources so close to Melbourne, and the readily accessible recreational areas. The Policy Area is rich in native plants and animal life, and has high value aesthetically, ecologically, recreationally, educationally, scientifically and for the conservation of soil and water resources. • Substantial areas of public land important for recreation and resources management, and areas of water catchment and water storage. • The importance of the Yarra River system as a water source, for for water-based recreation and natural systems conservation, and the need to maintain water quality accordingly. 13 • The susceptibility of the Yarra and its tributaries to local and regional flooding; their importance for drainage, and the need to integrate land use planning with flood management. • Other complementary Government policies, especially those related to environment protection and the use of public land. • Areas that have been inappropriately subdivided in the Policy Area, and that have a potential for detriment if developed in present form. • Forested areas of significance for hardwood timber production, recreation, land scape quality, conservation and water catchment, and which require careful man agement to maintain their value for those purposes." (Cl. 4.1 - 4.9 inclusive). The policy recognises the pressures for recreation and residential development and the implications of this for the environmental quality of the Policy Area. The environment of the region is vulnerable, and unless vigorous ·attempts are made to conserve it, the qualities that are attractive to residents and visitors will be lost forever. 2.7.3 URBAN CONTAINMENT One of the major elements of policy included within the Statement deals with the containment of urban development. It is important to note that the pol icy is not a mechanism for the management of urban sprawl. It is a statement of attitude by the Government on the containment of urban growtll. It sets expectations as much as it acts as a basis for statutory planning. · Statement of Planning Policy No. 3 states: "Any net increase in the total provision for residential development in the Policy Area shall be contained within· the aims of this Policy. There shall be no net increase in the total provision for residential development in the Dandenong Ranges; and no significant increase in the Yarra. Valley and the Southern foothills beyond that provided for in proposals approved or exhibited at the date of adoption of this policy." (Cl. 2.1) "Urban development and redevelopment of existing urban areas within the Policy Areas shall be planned within a strategy to be developed by the Upper Yarra Valley and Dandenong Ranges Authority to promote community well being and ensure that the aims of this Policy are implemented". (Cl. 2.2) "The Strategy shall give effect to this Policy's intent that development shall be contained, to ensure that it does not prejudice the conservation of natural resources and the amenity. for those who live there, and those who visit the area for recreation." (C. 2.3) It was on the basis of this policy direction that the Authority prepared the urban policies of the Regional Strategy Plan which was approved in 1982. In .1986 The Authority reconsidered it's attitude to Statement of Planning Policy No.3 and advised the Minister for Planning and Environment that the Authority re-affirmed it's support for the .policy while recognising that re-interpretation may be required in some areas following re-investigation of the region. 14 2.8 CONCLUSION The Region is fortunate in that the Victorian Government has developed a number of broad policy statements which provide the framework within which planning is carried out. Few areas in Australia have such direct statements of policy from the State Government and the expectations made so clear. In broad terms the Government's intention is for the region to be planned primarily as an open space system within which environmental resources will be conserved, the land scape protected and use made of the natural characteristics to assist primary production activities over the bulk of private land. ·The growth of urban Melbourne will be directed elsewhere. Within this environmental context, the strategic priorities of Government are directed towards social and economic goals which need to be achieved for this region. The local residents require jobs to create the wealth necessary to maintain the area and to adequately house themselves and provide the necessary services for fulfilling lives. This is the challenge facing the region and the task which the Authority must confront in considering the need to review the Regional Strategy Plan. 2.9 REFERENCES • Victorian Government ( 1973) Statement of Planning Policy No. 5 (Highway Areas) • Victorian Government ( 1979) Statement of Planning Policy No. 3 Upper Yarra Valley and Dandenong Ranges (as varied April 1979) • Victorian Government (April 1984) .. Victoria, The Next Step. Economic Initiatives and Opportunities for the t 9BO's • Victorian Government (June 1987) Protecting the Environment. kConservation Strategy for Victoria • Victorian Government (April 1987) Victoria the Next Decade. Leading Australia into the. Next Decade • Victorian Government (August 1987) 'Shaping Melbourne's Future': The Government's Metropolitan Policy • Victorian Government ( 1987) People and Opportunities. Victoria's Social Justice Strategy • Victorian Government (August 1988) Victoria Trading on Achievement; An Integrated Approach to Victoria's long Term Development 15 3.0 DEMOGRAPHIC PROFILE 3.1 POPULATION NUMBERS At the most recent population census, the Australian Bureau of Statistics (A.B.S.) Census of Population and Housing on 30th June 1986 ( 1986 Census}, the population of the Upper Yarra Valley and Dandenong flanges Region was recorded as 130,672 persons. The population of each of the four Shires in the Region was 10,708 in Healesville, 71,562 in Lillydale, 34,765 in Sherbrooke and 13,637 in Upper Yarra. The estimated population of the Region as at June 1988 is 140,250 (Henshall Hansen Associates, 1989 p. 3-1 ). 3.2 POPULATION DISTRIBUTION Table 1 and the accompanying Map 2 show the distribution of population throughout the Region. It is estimated that at the 1986 Census 65.5% of the Region's population (or 85,655 persons) resided in Urban Policy. Areas of the Regional Strategy Plan. A further 17.2% of the Region's population (or 22,481 persons) resided in Landscape Living Policy Areas of the Regional Strategy Plan (U.Y.V.D.R.A. 1988,b.). 3.3 POPULATION GROWTH The Region has experienced rapid population growth. The population increase between the 1976 and 1981 Census was a very high 21.4% or an average of 3.9% per annum (from 91,322 persons in 1976 to 110,841 persons in 1981). The following inter-censal period of 1981-1986 experienced an increase of 17.9% or an average of 3.3% per annum. This rate of growth was less than the preceding period, although considerably higher than the average growth rate for both the Melbourne Statistical Division (M.S.D.) (which was 4.8% and 2.0% for each inter-censal period) and Victoria as a whole (which was 5.1 % and 4.9% for each inter-censal period). The Shire of Upper Yarra has experienced the highest rate of growth of the four Shires in the Region. It had population growth for the years 1976 to 1981 of 28.6%, 1981 to 1986 of 35.0% and for the ten year period 1976-1986 of 73.5%. The Shires of Lillydale, Healesville and Sherbrooke experienced slower growth rates than Upper Yarra, however their growth rates were still well above the M.S.D. and Victorian averages. In absolute terms, Lillydale Shire's population increase was the greatest: 20,705 persons or 52.6% of the total increase in the Region over the 1976 to 1986 period. The fastest growing locality in the Region was Woori Yallock which experienced growth of 237. 7% for the period 1976 to 1986, from 1,07 4 persons in 1976 to 3,627 persons in 1986. However in terms of absolute growth the Moorool bark locality saw the greatest increase in population in the region: 4,295 persons or 10.9% of the Region's total population growth (from a 1976 population of 12,002 to a 1986 population of 16,29'7). 17 r I TABLE 1 CENSUS POPULATION FIGURES FOR Tl-IE YEARS 1976, 1981, 1986 AND POPULATION PROJECTIONS FOR THE YEARS 1991, 1996 AND 2001 SHIRE 1976 POP 1981 POP 1986 POP PROJECTED PROJECTED PROJECTED INCREASE " INCREASE AVER. ANNUAL Local Hy (A.B.S.) (A.B.S.) (A.B.S.) 1991 POP 1996 POP 2001 POP 1986-2001 1986-2001 INCREASE " 1986-2001 HEALESVILLE (Year lots exhausted - 1994) Christmas HHls (12) 282 411 520 905 993 953 433 83.36% 5.56% Tool/Dix Ck/Tarr ( 1 ) 918 1202 1327 1856 1926 1849 522 39.32% 2.62% Yarra Glen (11) 811 999 1170 1894 2147 2061 891 76.13% 5.08% Chum Ck (2) 427 530 681 827 785 754 73 10. 65% .71% Healsv/Badg Ck (3) 3861 4579 5824 8929 9906 9507 3683 63.24% 4.22% Maroondah (4) 300 337 295 259 246 236 -59 -19.94% -1.33% Coranderr·k (8) 464 664 l 891 1005 959 920 29 3.26% .22% TOTAL 7063 8722 10708 15676 16963 16280 5572 52.03" 3.47" ..... 00 LILLYDALE (Year lots exhausted-1994) Chirnside Park (14) 3095 4222 5176 5631 5692 5398 222 4.29% .89% Coldstream (10) 955 1829 2550 2789 . 2867 2719 169 6.61% .44% Gruyere (9) 376 520 645 873 928 880 235 36.43% 2.43% Kalorama (31) 832 1005 1208 1650 1702 1614 406 33.61% 2.24% Kilsyth/Kil. Sth (33) 8869 9498 9776 10535 10757 10202 426 4.36% .29% Li l yda le ( 15) 5538 6580 7467 11226 12621 11969 4502 60.30% 4.02% I Monbulk (36) 1631 1970 2185 3014 3180 3016 831 38.02% 2.53% I. Montrose (32) 4520 5542 6402 7153 7184 6813 411 6.42% .43% Mooroolbark (16) 12002 14343 16297 18658 19228 18235 1938 11.89% .79% Mt. Dandenong (34) 468 574 571 945 1005 953 382 66.88% 4.46% 01 inda (35) 998 1148 1345 1679 1664 1578 233 17.34% 1. 16% Mt. Evelyn ( 17) 4375 5670 6577 7948 8264 7838 1261 19. 17% 1. 28% Pine Hi 11 ( 18) 771 836 898 748 701 665 -233 -25.98% -1. 73% Seville/Sev Est (20) 1161 1473 2062 2825 3046 2889 827 40. 10% 2.67% Silvan (30) 1210 1400 1410 1731 1811 1717 307 21.81% 1. 45% Wandin (19) 1772 2318 2612 3174 3221 3054 442 16.93% 1. 13% Wonga Park (13) 2284 3149 4381 5112 5394 5116 735 16.77% 1. 12% TOTAL 50857 62077 71562 85693 89263 84656 13094 18.30% 1. 22r. SHERBROOKE (Year lots exhausted-1991) Belgrave (49) 3177 3620 4093 4907 4658 4439 346 8.46% .56% Belg Hgts & Sth (50) 1235 1467 1684 1853 1759 1676 -0 -.45% -.03% Clematis (52) 434 573 648 791 751 716 68 10. 44% .70% Emerald (37) 1683 2127 2622 3211 3048 2906 284 10.81% .72% Ferny Ck (44) 1356 1667 1912 2243 2129 2029 117 6. 12% .41% Kallista/Sherb (41) 855 979 1032 1533 1456 1387 355 34.44% 2.30% Lysterf/Belg Sth (48) 503 730 863 856 813 775 -88 -10.21% -.68% Maccles/Avonslg (29) 1347 1884 2510 2831 2687 2562 52 2.05% . 14% Menzies Ck (38) 724 873 1119 1317 1251 1192 73 6.52% .43% Monbulk (40) 904 1037 1075 1222 1159 1105 30 2.81% . 19% 01 inda (42) 588 741 898 1180 1120 1067 169 18.86% 1.26% Sassafras (43) 1269 1350 1521 2429 2306 2198 677 44.51% 2.97% Selby ( 51) 1849 2422 3073 3402 3229 3078 5 . 16% .01% Tecoma (47) 1064 1119 1284 1615 1533 1461 177 13.77% .92% The Patch (39) 655 764 857 1089 1034 986 129 15.00% 1.00% UFTG ( 45) . 1882 1859 1934 2334 2216 2112 178 9.20% .61% Upwey (46) 6019 6723 7640 8107 7695 7335 -305 -3.99% -.27% TOTAL 25544 29935 34765 40921 38842 37024 2259 6.503 .43Y. ..... UPPER YARRA Note: The number appearing in brackets beside each locality name corresponds with that of each locality as shown on Map 2. Source: Urban Spatial & Economic Con~ultants/Econsult P,ty. Ltd. (1988) Upper Yarra Valley & Dandenong Ranges Region Retail & Commercial Centres Study 1988. p.62 and Appendix 1. Although the overall trend in the Region has been rapid population growth, not all localities have grown significantly in population. The populations of several rural local ities including Maroondah (the rural area north-east of Healesville township as shown on Map 2), Mt. Dandenong, Silvan, Hoddles Creek and Powelltown either remained stable or declined slightly in the 1981 - 1986 Census period. 3.4 AGE STRUCTURE Information in the following table is based on the 1986 Census and figures are shown for the Region, the M.S.D. and for Victoria. Table 2 Population by Age Group from 1986 Census (As a percentage of the total population for each area) Age Group (yrs) 0-4 5-9 10-14 15-19 20-24 25-39 40-59 6o+ REGION 9. 1 9.6 9.7 8. , 6.5 27.8 18.4 9.8 M.S.D.* 7 .o 7.0 7.9 8.9 8.7 24.5 2,. 4. 14.6 VICT. 7.3 7.3 8.3 8.8 8.3 24., 21., 14.8 • MSD - Melbourne Statistical Division It can be clea_rly seen that the Regi0n has a relatively young population. There is a 'higher percentage of children in the 0-14 age categories than for either the M.S.D. or Victoria. The proportion of 15-19 year olds is similar, while there is a noticeably lower .. proportion of 20-24 year olds in the Region's population structure, when compared with the M.S.D. and Victoria. The Region's young age structure is reflected in the relatively high proportion of adults in the main child-bearing age group - 27.8% of the Region's population were aged 25-39 years compared with 24.5% for the M.S.D. and 24.1 % for Victoria. Another clear demonstration of the Region's relatively young age structure is that the proportin .of 40-59 year olds is lower for the Region, while the proportion of elderly people in the 60+ age group was very much lower for the Region (9.8%) when compared with the M.S.D. (14.6%) and Victoria ( 14.3%). However, the Region's population is ageing, as evidenced by the substantial 18.3% increase in the 60+ age group between the 1981 and 1986 Census compared with increases of only 9.8% and 4.6% for the 0-4 year olds and 5-9 year olds respectively. The age structure of the Region is obviously not uniform overall. For example, growing residential areas such as Woori Yallock, Millgrove and Badger Creek have even higher proportions of 0-4 year olds in their populations than the Regional average. 3.5 FAMILY TYPE The predominant family types throughout the Region are couples and couples with dependent children. 20 ___~ __,10 15 kilometres YARRA 6 26 Hoddles Creek Numbers correspond with those in Table 1 Locality Names Map 2 At the 1986 Census the proportion of couples in the Region (28.2%) was similar to that for metropolitan Melbourne (29.0%) and Victoria (29.5%). The Region has a higher proportion of couples with dependent children; 44.3% in contrast with 35.5% in metro politan Melbourne and 36.4% in Victoria. 3.6 HOUSEHOLD TYPE As with Melbourne and the rest of Victoria, the major household type in the Region is the single family household. However, the proportion of single family households is greater in the Region (82.3%) than in the M.S.D. (74.9%) and Victoria (75.6%). 3.7 INCOME LEVELS At the 1986 Census there was a relatively high proportion of middle income families ($22,001 - $40,000) in the Region in contrast to the M.S.D. and Victoria (see Table 3). The Shires of Lillydale and Sherbrooke had the greatest proportion of middle income families in the Region; 37.1 % and 46.1 % respectively. There were markedly fewer middle income families in the M.S.D. (32.4%) and Victoria (31.5%). Income levels of families in the Region indicate a significant proportion of families living below the poverty line. The poverty line set by the Institute of Applied Economic and Social Research in June 1986 was $16,645.00 per annum for a three child family and · $14,528.80 per annum for a two child family. Healesville and Upper Yarra Shires had 21.2% and 23.6% of families respectively earning less than $15,000 per annum at the June 1986 Census. This compares with 18% of families in this situation in the M.S.D. and 20.7% in Victoria. Lillydale and Sherbrooke Shires had 14.6% and 14.5% respectively of families in this situation, each considerably lower than the M.S.D. and Victoria but still a significant proportion. The Shires of Lillydale and Sherbrooke had similar proportions of families on high incomes ($40,000+) to the M.S.D. and Victoria: 19.5% in Lillydale and 21.8% in Sher brooke compared with 22.1 % in the M.S.D. and 19.2% in Victoria. However Healesville · and Upper Yarra Shires had significantly fewer high income households ( 13.6% and 9.8% respectively). Table 3 Family Income 1986 - % of Total Population $ Healesville Lillydale Sherbrooke Upper Yarra MSD Vic o- 9000 4.9 3.7 3.8 5.2 4.5 5.3 9001-15000 16.3 10.9 10.7 18.4 13.5 15.4 15001-22000 18.2 14.6 14.4 19.6 13.8 14.9 22001-32000 19.0 22.9 21.9 20.6 19.3 19.2 32001-40000 12.0 14.2 14.2 11. 2 13. 1 12.3 40001 & over 13.6 19.5 21. 8 9.8 22. 1 19.2 not stated 13.8 12.2 i0.9 13.0 11. 8 11.7 Spouse absent 2.2 2.0 2.3 2. 1 1 .9 2.0 TOTAL 100.0 100.0 100.0 100.0 100.0 100.0 21 3.8 OCCUPATIONAL STATUS The occupational status of the Region's labour force was not uniform across the four Shires at the 1986 Census. Healesville and Upper Yarra reflected the Victorian average, having tradespersons and labourers as the dominant occupations. In Sherbrooke, clerks, salespersons and professionals are the dominan~ occupations and in Lillydale tradesper sons, clerks and salespersons are the three most prevalent occupations. 3.9 UNEMPLOYMENT At the 1986 Census the Shires of Lillydale and Sherbrooke had lower unemployment rates (4.8% and 5.3% respectively) than the M.S.D. and Victoria (6.6% and 7% respec tively). Healesville and Upper Yarra Shires were closer to the M.S.D. and Victorian averages (6.7% and 7.3% respectively). As with the M.S.D. and State, the Region's 15-19 year olds had the highest unemployment rate, an issue of major concern. 3.10 ETHNICITY The majority of the Region's residents (79.4%) were Australian born, as at the 1986 Census. Of the remaining non-Australian population, most came from the United Kingdom and Ireland (8.8% of the Region's population). This trend is evenly spread throughout the foui Shires and is consistent with the State as a whole. 3.11 POPULATION PROJECTIONS Authority staff have undertaken detailed estimates of the development potential available under existing planning controls in the Region (U.Y.V.D.R.A., 1988c). These estimates have been utilised by consultants to the Authority (USE/Econsult, 1988) to generate population projections for the Region to year 2001. The population projections are shown in Table 1 ( the localities in the table are shown on the accompanying Map 2). These population projections have been based on the follow ing methodology: • adoption of the 1986 base (A.B.S. Census); · • adding new dwellings (Shire building approvals); • adding potential new lots under existing zonings (U.Y.V.D.R.A. 1988c); • calculating maximum additional dwellings for 1991, 1996 and 2001; and • applying forecast Department of Management and Budget dwelling occupancy rates which take into account changing population profile. Assumptions on dwelling vacancy rates and numbers of persons in non-private dwellings are incorporated. Table 1 shows that under the potential of existing zonings the Region's population should continue to increase to a peak of approximately 166,500 persons by 1996. This repre sents an increase of approximately 35,830 persons on the population recorded in the 1986 Census (27% population growth across the Region) and corresponds with an annual growth rate of approximately· 3%. This compare0 s with an average annual growth rate of 3.3% between 1981 and 1986 Census and 3.9% between 1976 and 1981 Census. 22 Due to utilisation of all vacant land stocks and trends towards decreasing household size, it is projected that after 1996 the population of the Region should gradually taper off to approximately 158,500 persons at year 2001. It must be emphasised that this projection assumes no change in current 'planning controls. Table 1 provides details regarding existing and projected populations for all localities throughout the Region. The number appearing in brackets next to each locality name corresponds with the location of each area, as shown on Map 2. In terms of predicted growth between 1986 and 2001 the Shire of Healesville is expected to have the highest growth rate (average of 3.4% per annum), followed by Upper Yarra (av. 3.38% p.a.), Lillydale (av. 1.22% p.a.) and Sherbrooke (av. 0.4% p.a.). In absolute terms, Shire of Lillydale should record the largest growth with an additional 13,094 persons followed by Upper Yarra with 6,923 persons, Healesville with 5,572 persons and Sherbrooke with 2,259 persons. Availability of vacant lots is the prime determinant of population growth distribution. The localities which are forecast to experience the largest increases in population to 2001 are: Lilydale Healesville/ Badger Creek Moorool bark Warburton Mt. Evelyn Yarra Junction (see Table 1) Estimates have also been made of the changing demographic profile of the Region's population to 2001. Table 4 presents a comparison of the age structure of the Region's population in 1986 and the projected age structure in 2001. From the table a gradual trend towards the ageing of the Region's population is apparent. The population in all age groups below 40 is expected to show a proportionate decline and the _population aged 40 or more a proportionate increase. The Region's demography should be closer to that of the M.S.D. and the adjacent municipalities of Croydon, Eltham, Doncater Templestowe and Knox. TABLE 4 PROJECTED CHANGE IN AGE PROFILE BETWEEN 1986 AND 2001 (as percentage of total population in each area) Age Group Year Healesville Lillydale Sherbrooke Upper Yarra U.Y.V.D.R. M.S.D. Shire (1) Shire ·Shire Shire (2) Region 0-4 1986 9.2 9.7 10.0 10.8 9.9 7 .0 2001 7.6 7.4 7.4 7.5 5-9 1986 8.9 9.9 9.2 9.6 9.6 7 .o 2001 7.6 7.2 7.4 7.4 10-19 1986 16.9 18.7 16.8 16. 1 17.8 16.8 2001 14.6 14.0 14.6 14.3 23 TABLE 4 (Continued) PROJECTED CHANGE IN AGE PROFILE BETWEEN 1986 AND 2001 (as percentage· of total population in each area) Age Group Vear Healesville Lillydale Sherbrooke Upper Varra U.V.V.D.R. M.S.D. Shire (1) Shire Shire Shire (2) Region 20-39 1986 32.2 34. 1 36.5 33.8 34.3 33.2 2001 24.6 30. 1 28.0 27.6 40-59 1986 19.6 18.8 18.0 17.3 18.4 21.4 2001 28.8 28.3 31. 1 29.4 29 .4 27.3 60+ 1986 13.2 8.8 9.5 12.4 9.8 14.6 2001 17.0 13.0 11. 7 13.9 14.0 17.0 Source: Ministry for Planning & Environment, A Population and Household Forecast for Metropolitan Melourne, September 1988 (1) Includes that part of Healesville located in the Melbourne Statistical District. (2) Source did not include 2001 estimate for Upper Yarra Shire, but an estimate was made based on the average of the other three Shires within the Region. MAP 3.1: INDEX TO LOCALITIES 3.12 IMPLICATIONS The population projections imply a continuing need to plan for high levels of growth in some areas but not in others. They indicate that, under existing planning controls, the Region overall is likely to continue to experience relatively high levels of growth at least until 1996. However this population growth is not likely to be uniform across the Region. Some localities such as Lilydale, Healesville/Badger Creek, Mooroolbark, Warburton and Yarra Junction are likely to experience high levels of growth, whilst other localities such as Maroondah, Pine Hill, Lysterfield/Belgrave South and Upwey (see Map 2) are likely to experience a net loss of population. Many other localities, particularly those in Sher brooke Shire, are only likely to experience modest growth rates. The result of the predicted age structure trends are that the demand for faci I ities needed for younger age groups (such as maternal and child health centres, pre-schools and schools) across the Region generally is likely to increase at a slower rate than expected population growth. In some areas demand may actually decline despite increasing population numbers. Conversely, the demand for services and facilities for older age groups (such as aged persons accommodation, senior citizens centres) is likely to increase at a faster rate than the population growth. However, given the existing diversity in the Region and the concentration of development potential in some areas and not in others, this trend is not likely to occur at a consistent rate across the Region. Some localities which are expected to have considerable population increase (such as Lilydale, Healesville/Badger Creek and Yarra Junction) are likely to have a greater proportic;m of young families and a consequent high demand for facilities such as maternal and child health centres, pre-schools and schools. 24 3.13 REFERENCES • Australian Bureau of Statistics, Small Area Data, 1986, 1981, 1976. • Henshal I Hansen Associates ( 1989) Settlement Patterns in the Upper Yarra Valley and Dandenong Ranges Region to the Year 2001. • Urban Spatial and Economic Consultants Pty. Ltd. in conjunction with Econsult (Australia) Pty. Ltd. (USE/Econsult) ( 1988) Upper Yarra Valley and Dandenong Ranges Region Retail and Commercial Cen tres Study 1988. • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V.D.R.A.) (1988,a). Population and Housing Characteristics of the Upper Yarra Valley and Dan denong Ranges Region: 1976, 1981and1986. • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. D.R.A.) (1988,b). Population and Housing in Urban, Landscape Living and Rural Residential Policy Areas of the Regional Strategy Plan at 1986 Census. • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. D.R.A.) (1988, c). Capacity for Additional Residential Development in the Upper Yarra Valley and Dandenong Ranges Region as at 31st March 1988. • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V.D.R.A.) (1988, d). Community Services in the Upper Yarra Valley and Dandenong Ranges Region: A Consultation and Literature Review. 25 r------ 4.0 RESIDENTIAL 4.1 ATTRACTION OF THE REGION FOR RESIDENTIAL DEVELOPMENT AND THE NEED FOR CONTAINMENT OF SUCH DEVELOPMENT The Region's location on Melbourne's eastern fringe, its attractive landscapes, its rela tively low residential land prices (generally cheaper than within Melbourne's established suburbs) and the traditional eastern bias of Melbourne's outward growth all make the Region a highly sought after location for residential development. Over the past few decades a large supply of vacant residential land has existed in the Region. However this supply is now greatly depleted and there is consequently consider able pressure for rezoning of non-urban land for residential purposes. Demand for residential land in fact exerts the largest pressure for more intensive use and development of the Region's non-urban or rural land. Broad-scale residential development consequently has the greatest overall potential for detriment to the Region's special characteristics: its scenic landscapes, significant and vulnerable flora and fauna, impor tant agricultural and recreational resources and significant waterways. This is the reason why the Government's planning policy for the Region (Statement of Planning Policy No.3) contains specific references to the need for limiting the extent of residential development in the Region and in particular, the aim to "contain urban development to a scale and type compatible with the conservation of the Policy Area and with high standards of amenity" (Cl.1.2). Further, Statement of Planning Policy No. 3 stipulates the following requirement. "Any net increase in the total prov1s1on for residential development in the Policy Area shall be contained within the aims of this Policy. There shall be no net increase in the total provision for residential development in the Dandenong Ranges; and no significant increase in the Yarra Valley and the southern foothills beyond that provided for in proposals provided or exhibited at the date of adoption of this Policy." (Cl.2.1) 4.2 CURRENT PROVISION FOR RESIDENTIAL DEVELOPMENT UNDER THE REGIONAL STRATEGY PLAN. Land use in Urban and Landscape Living Policy Areas of the Regional Strategy Plan is predominantly residential. The Regional Strategy Plan's Urban Land policies have been developed to ensure efficient use of the existing physical infrastructure (roads, railways, sewerage and water supply systems etc.) and community services and to provide opportunities for a variety of lifestyles. This is intended to be achieved through the implementation of an urban phasing strategy which determines the location and priority of servicing urban develop ment. A set of policies has been written for subdivision and land use management to complement the Urban phasing strategy for each of the designated Urban Policy Areas: Urban 1, Urban 2 and Urban 3 (these areas are shown on Map 3). A brief description of each of the Urban Policy Areas and the Landscape Living Policy Area follows. URBAN 1 This Policy Area contains urban land which was already provided with reticulated sewerage at the time of preparation of the Regional Strategy Plan. The land is primarily 27 r:------ adjacent to the western boundary of the Region and includes Chirriside Park, Coldstream, Kilsyth, Lilydale, Montrose, Mooroolbark, Upper Ferntree Gully and Woori Yallock. The primary purpose of the Policy Area is "to maximise the use of existing services, whilst minimising the impact of further urban subdivision and/or development on this Region by concentrating future urban subdivision and/or development in areas which are already provided with reticulated sewerage and other services." (Cl.2.09). URBAN 2 This Policy Area contains urban land which was programmed to be provided with reticulated sewerage when the Regional Strategy Plan was prepared. It contains Urban Land in Belgrave, Monbulk, Montrose, Mt.Evelyn, Tecoma and Upwey. The primary purpose of this Policy Area is "to recognise the commitment that services are to be provided to these areas but to ensure that urban density subdivision and/or development does not occur until these areas have been provided with reticulated sewerage and any development which may occur is provided with suitable waste water management facilities." (Cl.2.26). Apart from much of Monbulk all of the Urban 2 Policy Areas ·are now largely sewered. URBAN 3 This Policy Area contains urban land which was not programmed to be sewered at the time of preparation of the Regional Strategy Plan. It includes urban land in Emerald, Healesville, Lilydale West, Seville, Seville East, Silvan, Wandin, Wandin North, Wandin Yallock, Warburton, Wesburn, ,Wonga Park, Yarra Glen and Y~rra Junction. The primary purpose of this Policy Area is "to recognise that these areas will generally not be provided with reticulated sewerage facilities for some time and to ensure that future subdivision and/or development is appropriate to this situation". (Cl.2.45). Parts of Emerald, Healesville, Lilydale West, Seville, Yarra Glen and Yarra Junction are now sewered, although they remain in an Urban 3 Policy Area. LANDSCAPE LIVING The Landscape Living Non Urban Policy Area contains land which is already substan tially subdivided and used primarily for residential purposes, with a subdivision density lower than typical urban areas. It primarily contains steep, bushland areas which are generally inappropriate for closer density subdivision. Examples include the low density residential areas in the Dandenong Ranges, isolated townships in the Yarra Valley such as Launching Place, Millgrove and ·East Warburton and land on the outskirts of Heales ville. The primary purpose of this Policy Area is "to control development and further subdivision so that the special landscape characteristics of the Policy Area and the water quality of watercourses draining the Policy Area are maintained or enhanced." (Cl.3.199). Several areas included in a Landscape Living Policy Area are now provided with reticulated sewerage. These areas are parts of Millgrove, Mt. Evelyn; Montrose, Badger Creek, Emerald, Avonsleigh and Cockatoo. 4.3 POPULATION IN RESIDENTIAL AREAS At the 1986 Census approximately 65.5 per cent of the Region's population (or 85,655 persons) lived in Urban Policy Areas and approximately 17.2 per cent of the Region's population (or 22,481 persons) I ived in the Landscape Living Pol icy Area. There were 27,862 dwellings in all of the Urban Policy Areas and 8,027 dwellings in the Landscape Living Policy Area. Therefore there was an average of 3.18 persons per dwelling in Urban Policy Areas and 2.80 persons per dwelling in Landscape Living Policy Areas. (Upper Yarra Valley and Dandenong Ranges Authority·1988 a). 28 10 15 kilometres Toolang i HEALESVILLE Yarra UPPER VAR RA G Sugarloaf Reservoir • '{?>\~1 .c "·'~ I r"'" \ "" ..., ..:. . ., ~"· "'-·r Hodd/es Creek 1 Urban 1 Urban 2 2 Urban3 3 Urban Policy Areas (R.S.P. 1982) Map 3 4.4 CAPACITY FOR ADDITIONAL RESIDENTIAL DEVELOPMENT UNDER CURRENT PLANNING CONTROLS Estimates have been made of the capacity for additional residential development in the Region under existing planning schemes as at 31st March 1988. (Upper Yarra Valley and Dandenong Ranges Authority 1988 b). The estimates show the total capacity of Urban and Landscape Living Policy Areas as being 8,723 additional lots. These additional lots (existing vacant lots and potential yield from further subdivision) are located in each Shire as shown in Table 5. Estimates have also been prepared on the time it will take to exhaust the existing and potential supply of vacant lots (based on 5 year trends in building approvals) and these are shown in Table 6. It cannot be assumed that development is likely to occur at a constant rate in each municipality until the supply of vacant lots is exhausted. Certain areas within the Region are likely to have much higher growth rates than others. For example, the following areas all had potential for more than 250 additional houses as at 31st March, 1988: Existing Vacant Potential Lots From Locality Lots Further Subdivision Lilydale: 994 525 Mooroolbark: 650 445 Healesville/Badger 553 326 Creek: Kilsyth: 236 317 Mt.Evelyn: 226 304 Wonga Park: 146 241 Warburton: 186 168 Chirnside Park: 253 16 Yarra Junction: 30 255 Montrose: 140 142 Growth in localities with high availability of lots (or potential lots) will not necessarily be at a higher rate than those with fewer lots. The situation is complicated by factors such as relative proximity to Melbourne, physical constraints to development, land price, number of allotments on the market and willingness of owners of 'broad acre' land to subdivide. However Lilydale and Mooroolbark are likely to show the highest growth rates in the Region over the next few years because of their large number of vacant lots (both existing and potential) and their relatively close proximity to Melbourne. Until now, the effects of Statement of Planning Policy No.3 in constraining further residential development have not been noticed due to the large stocks of vacant residential land which existed in 1979 when the Policy was gazetted. (Upper Yarra Valley Dandenong Ranges Authority, 1982,b. p.4). However this large stock of vacant residential land has rapidly been utilised during the 1980's. 29 TABLE 5 UPPER YARRA VALLEY AND DANDENONG RANGES REGION VACANT LOTS AND POTENTIAL VACANT LOTS IN URBAN AND LANDSCAPE LIVING POLICY AREAS AS AT MARCH 1988 Shire and Existing Vacant Potential lot Potential lot yield TOTALS Policy Area Lots with No Yield from Subn. from Subn. of Subdivision Pot. of Vacant lots* partly dev. lots * HEALESVILLE Urban 396 318 171 885 Landscape Living 212 15 8 235 Total 608 333 179 1, 120 LILLYDALE Urban 2,748 933 1'292 4,973 Landscape Living 454 103 73 630 Total 3,202 1,036 1,365 5,603 SHERBROOKE Urban 433 433 Landscape Living 429 2 431 Total 862 2 864 UPPER YARRA Urban 314 462 132 908 Landscape Living 215 4 9 228 Total 529 466 141 1,136 REGION TOTAL Urban 3,891 1. 713 1'595 7. 169 Landscape Living 1'310 124 90 1,524 Total 5,201 1,837 1,685 8,723 • In Urban Policy Areas the lot yield in the above table is based on subdivision potential under planning controls approved as at March 1988. Formulae used in yield calculations are: • for lots less than 1 ha • for lots less than 1 ha and where minimum lot size is 2000m2 or greater = area - (minimum lot size x 1.5) • for lots 1ha or greater and where minimum lot size is less than 2000m 2 = area - (minimum lot size of zone x 1.2)· In Landscape Living Policy Area the lot yield is based on subdivision potential under the Regional Strategy Plan ie. area - 2 ha. Source: Upper Yarra Valley and Dandenong Ranges Authority (1988) Capacity for Additional Residential Development in the Upper Yarra Valley and Dandenong Ranges Region as at 31st March 1988. 30 TABLE 6 ESTIMATES OF THE TIME IT WILL TAKE FROM 31ST MARCH 1988 TO EXHAUST THE SUPPLY OF VACANT LAND IN URBAN AND LANDSCAPE LIVING POLI CY AREAS. 2 3 4 Estimate of time Estimate of time Estimate of Shire/Region to exhaust supply to exhaust supply ti me to of exist ing · of potential exhaust supply vacant lots vacant lots from of existing (assuming 80% presently and potential will become . unsubdivided land. vacant lots available for (assuming 50% (summation of development). will become columns 2 & 3) available for development). Shire of Healesville 4 years 2 years 6 years Shire of Lillydale 4 years 2 years 6 years Shire of Sherbrooke 21/2 years Nil 21/2 years Shire of Upper Yarra 21/2 years 11/2 yerirs 4 years Region as a whole 31/2 years 11/2 years 5 years (average of 4 Shires) Source: Upper Ya"rra Valley and Dandenong Ranges Authority (1988) Capacity for Additional Residential Development in the Upper Yarra Valley and Dandenong Ranges Region as at 31st March 1988. 4.5 OPPORTUNITIES AND CONSTRAINTS FOR URBAN EXPANSION IN THE UPPER Y ARRA VALLEY As indicated in Section 4.4, the supply of vacant residential land in the Region is approaching exhaustion. To open large tracts of land for additional residential develop ment would have a severe detrimental impact on the special qualities of the Region. For this reason the Government's planning policy for the Region has as one of its major elements the containment of urban development. As indicated above, the policy r~quires that there be no net increase in the total provision for residential development in the Dandenong Ranges and no significant increase in the Upper Yarra Valley. The words "no significant increase" in the total provision for residential development in the Upper Yarra Valley are open to interpretation but it is considered that the most reasonable interpretation is that used by the Review Panel for the Regional Strategy Plan and described in Volume 1 of the Review Panel's Report. (October, 1981, p155). This interpretation is based on the intent of Statement of Planning Policy No.3 and involves the following: (a) Although the terms "urban development" and "residential development" are both used throughout Statement of Planning Policy No. 3 they have not been used inter-changeably. "Urban development" is interpreted as meaning that type of devel opment common to Urban areas in the Region and generally based on a 0.1 ha 31 density. "Residential development" is interpreted as meaning land used primarily for domestic living and not for agricultural/rural type pursuits. It would therefore also include rural residential lots. (b) A strict numerical interpretation should not dictate the interpretation of the words "no significant increase". The Oxford dictionary defines "significant" inter alia as "inviting attention; noteworthy, of considerable amount or effect or importance." It is considered that the Government was concerned about the effect, as opposed to the amount, of development having regard to the· stated intention of containing "development to a scale and type compatible with the conservation of the Policy Area." The fundamental purpose of Statement of Planning Policy No.3 is the conservation and enhancement of the Policy area in terms of its natural resources (including natural environmental resources; landscape value; and rural, water and forest resources). It could be argued that some additional residential development may proceed without having a significant effect on these considerations. In order to assess the effect of additional residential development on the Region's naturai resources and the most desirable loca tion of any additional development it is necessary to undertake a detailed feasibility assessment of land in the Upper Yarra Valley. An assessment has been undertaken of the suitability for residential development of non-urban land within one kilometre of existing urban policy areas in the Upper Yarra Valley (U.Y.V.D.R.A. 1988d). A one kilometre limit was set for this initial feasibility assessment because of the vast amount of land in the Upper Yarra Valley, the un desirability of establishing new concentrations of population at a distance from the services available in existing settlements and because it was considered that the formation of new settlements would be "significant". Land within the Dandenong Ranges, as designated in Statement of Planning Policy No.3, was not included in the assessment because this planning policy specifies that there shall be no net increase in the total provision for residential development in the Dandenong Ranges. Criteria examined in the assessment covered environmental constraints, reticulated ser vice availability, transport availability, human service provision, strategic location, op portunity cost of alternative land use, physical appearance, allotment pattern and land capability. The outcome of this assessment procedure is that several areas in the Upper Yarra Valley have been assessed as being potentially suitable for additional residential development. These areas include (in very general terms) some of the land currently in non urban policy areas located: • immediately west of Chirnside Park • immediately north of Lilydale • in East Mooroolbark • in South Kilsyth • immediately west of Yarra Glen • immediately south-east of Healesville • immediately adjacent to Yarra Junction • immediately adjacent to Woori Yallock. • immediately adjacent to Wandin 32 The actual extent of development which should be permitted to occur is a matter which requires very careful consideration. Additional development should not overtax existing services and facilities (or should conversely be capable of supporting improvements in facilities) and should not be located where it is likely to promote future ad.hoc. exten sions into adjacent non-urban areas. 4.6 PRINCIPAL PLANNING ISSUES AFFECTING RESIDENTIAL LAND USE IN THE REGION The principal planning issues affecting residential land in the Region can be summarised as follows: • The Region is a highly sought after location for residential development. • The large supply of vacant residential land which existed in the Region is now greatly depleted. • Large-scale expansion of residential development into the Region's current nor:i urban policy areas would cause great detriment to the Region's special characteris tics. The State Government's planning policy for the Region (Statement of Planning Policy No. 3) aims to limit the extent of residential development in the Region by requiring no net increase in the total provision. for residential development in the Dandenong Ranges and no significant increase in the Upper Yarra Valley. The basic reasons underpinning the need for such a policy and the nature of the special characteristics of the area have not changed and the need for the policy is still .· demonstrated within the Region. • Some additional residential development, in the form of infill development and limited expansion of urban policy areas, could occur in the Region without detriment to the Region's important natural resources, provided that it does -not overload roads and uti I ity services. 4.9 REFERENCES • Residential Development Provisions Task Force (August 1987). Residential Development Provisions for Victoria. (Draft Provisions). Gov.ernment Printer • Review Panel for the Upper Yarra Valley and Dandenong Ranges Regional Strategy Plan (October, 1981). Report on the Upper Yarra Valley and Dandenong Ranges Regional Strategy Plan. (Prepared for the Upper Yarra Valley and Dandenong Ranges Authority in accor dance with Section 1"4 of the Upper Yarra Valley and Dandenong Ranges Authority Act 1976) • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A) 1982, a. Regional Strategy Plan October 1982 • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.), 1982, b. Investigations Report October 1982 • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.) 1988, a. Population and Housing Characterisitcs of Urban, Landscape Living and Rural Residential Policy Areas at the 1986 Census • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V.& D.R.A.) 1988, b. Capacity for Additional Residential Development in the Upper Yarra. Valley and Dandenong Ranges Region as at 31st March 1988 33 • Upper Yarra Valley and Dandenong Ranges Authorty (U.Y.V. & D.R.A.) 1988, c. Survey of Real Estate Agents Operating in the Upper Yarra Valley and Dan denong Ranges Region • Upper Yarra Valley and Dandenong Ranges,Authority (U.Y.V. & D.R.A) 1988, d. Opportunities alld Constraints for Urban Expansion in the Upper Yarra Valley • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.) 1989. Overview of Housing Needs in the Upper Yarra Valley and Dandenong Ranges Region: A consultation and Literature Review • Victorian Government ( 1979) Statement of Planning Policy No. 3, Upper Yarra Valley & Dandenong Ranges (as varied April 1979) · . . • Victorian Government ( 1987) Shaping Melbourne's Future. The Govern~ent Metropolitan Policy. August 1987. 34 RESIDENTIAL - POLICY OPTIONS Broad planning policy options for residential development in the Region can be divided into two categories: residential density and additional land for residential development. RESIDENTIAL DENSITY Two options are identified. Each of these options relates only to land included in Urban Pol icy Areas. ( 1) Retain current subdivision density requirements and control over housing type: (2) Allow a diversity of residential development in selected localities which are close to public transport, retail facilities and community facilities; which have all reticulated services; and which have no environmental constraints. The first option would tend to maintain the current pattern of residential development in the Region, as current planning controls governing the amount of housing in existing urban areas would be maintained. The second option would permit more flexibility in housing density and type. ADDITIONAL LAND FOR RESIDENTIAL DEVELOPMENT Two options are identified: ( 1) No additional land for residential development in the Region. All future growth would be provided for under existing zonings. As at 31st March 1989 this amounts to approximately 7,500 lots or 4 years supply on a Region-wide basis. (2) Provide for additional residential development on land currently in non urban policy areas but adjacent to urban policy areas in the following localities; • Chirnside Park (approx. 25 ha - which could accommodate 250 lots at the conventional outer suburban residential density of 1O lots per hectare) • East Mooroolbark (approx. 82 ha) • Yarra Glen (approx. 20 ha) • Healesville (approx. 35 ha) • Yarra Junction (approx. 33 ha) • Woori Yellock (approx. 5 ha) • Wand in (approx 1O ha.) These areas have no physical constraints for urban development, most can readily be provided with reticulated services and, if properly planned, the resultant devel opment would not be detrimental to the special environmental characteristics of the Region. The first option would allay any fears that additional residential development may have some detrimental impacts on the character of the Region. However, it would provide no additional land to meet the evident demand for additional housing and further more, would not take advantage of some economies of scale in servicing nor adjust some anomalies in existing urban boundaries. The proposals in the second option would allow for relieving the immediate pressure for additional residential land in the Region whilst still conforming with Statement of Plan- 35 .------ 5.0 RURAL RESIDENTIAL 5~ 1 INTRODUCTION Rural residential land use can be defined as the primarily residential use of land in a rural environment. The size of rural residential properties can vary considerably but they are typically greater than 0.4 hectare ( 1 acre) and less than 1O hectares (25 acres). Essentially, the desire for a rural residential property is usually intended to satisfy one or more of the following lifestyle or leisure preferences: • to keep a horse or horses; • to keep 'homestead' farm stock (goats, milking cow, chickens etc); • to live in a rural or bushland environment; • to be isolated from neighbours; or • to have a large garden. Rural residential development is scattered throughout the Region wherever relatively small rural lots occur. Large concentrations exist in each of the Shires, for example in Wong a Park, Chirnside Park, Lilydale, Lysterield, Narre Warren East, Macclesfield, Launching Place, Christmas Hills and Healesville. _ The issues related to rural residential uses have become increasingly relevant to the Region as more people seek to live in rural surroundings while still being within commuting distance of the city. 5.2 BUYER DEMAND An indication of demand for rural residential property in the Region has been sought by a survey of real estate agents (U.Y.V. & D.R.A. 1988a). The Agents reported that demand for rural residential properties in the Region was extremely high. Two to four hectare lot sizes were seen as being most desired. 5.3 LANDOWNER/SUBDIVIDER POSITION To the owners of large rural holdings the advantage of a demand for rural residential property may be the option of realising a short term economic gain. This may either provide capital to allow for the maintenance of the farm b1.Jsiness during a lean period or provide a landowner with a large capital gain on retirement or relocation. A trend of individual landowners taking advantage of the demand for rural residential lots may, however, compromise the long term protection of the agricultural base in the Region. The subdivision of large holdings for rural residential use can become self generating to the point where speculative forces place a value on adjoining 'broadacre' land that bears no relationship to its rural productive potential, but reflects the land's development potential for residential use. -The inability of most farmers to purchase land for agricultural use and the realisation of nearby farmers that the ability to expand production by purchase of land in the area is limited in the long term, encourages further pressure for subdivision. In addition, rural residential use often creates negative effects on nearby farmers and visa versa. These effects (which are discussed in Sectio.n 5.4.2 below) further encourage farmers to sell out. 37 Owners of uncleared land often perceive their property as an ideal candidate for rural residential use. Forested land will screen development and minimise adverse visual impacts. There are, however, often very good reasons why the land has not been cleared for farming in the past: in many cases the land ·is very steep or access is very poor. In the Region these areas are often covered by remnant communities of indigenous vegeta tion which are of botanical or zoological significance. Forested land, particularly where steep, is usually of high fire hazard. This in combination with poor access due to the topography of the land, is a serious constraint for rural residential land use. 5.4 LAND USE MANAGEMENT ISSUES Rural residential land use and development introduces a number of issues which can be classified as either concerns for the environment, to adjoining landowners and to the wider community. 5.4.1 ENVIRONMENT AL CONCERNS The major environmental· concerns generated by rural residential land use and develop ment include the following.· • Detriment to Ecology An increase in the intensity of land use in ecologically significant areas, such as within sites of botanica\ and zoological significance, can have severe detrimental effects on these sensitive ecologies due to factors such as vegetation removal and increased numbers of people and domestic pets. • Bushfire Hazard The siting of additional development in bushfire - prone rural areas places more people at risk and poor management practices_ often associated with rural residential development can increase the incidence of bushfire. • Pollution Pollution of watercourses can be created by ineffective or defective waste manage ment systems. • Erosion Erosion of land can be accentuated by factors such as inexperienced or uncaring overstocking.of land and inappropriate clearing of vegetation. • Weed and Vermin ln.festation Poor management techniques and ignorance of controls by inexperienced new residents can lead to weed and vermin infestation of the property and adjoining land. • Detriment to Landscape ·inappropriate siting and design of buildings, structures and earthworks and tree clearing can have severe detrimental effects on landscapes, especially where the land has high visual exposure. In general, the smaller the lot size the greater the landscape impacts. · 38 5.4.2 ADJOINING LANDOWNER CONCERNS Adjoining landowners, particularly farmers, are directly and indirectly affected by rural residential development. Common concerns include the following. • Domestic Pets An increase in domestic .pets, particularly dogs and cats, roaming around an area threatening stock and native wildlife. • Complaints Rural residential dwellers often complain of farming techniques such as spraying and bird scarers. • Impact of Poor Land Management Farming operations can be detrimentally effected by poor land management tech niques of inexperienced, part-time operators on adjacent properties. Examples in clude lack of weed management, fencing maintenance and stock control. • Land Speculation Speculation on 'broad-acre' properties for rural residential development can raise land values to levels which make expansion of farming operations prohibitively expensive and increase rates to unrealistic levels. • Closure of Farm Support Services Extensive loss of farmers to an area usually results in loss of farm support services for those who remain. 5.4.3 WIDER COMMUNITY CONCERNS Apart from the relatively immediate concerns of adjoining landowners, rural res·idential land use introduces a number of long term, broadly based community problems. • Service Provision Rural residential dwellers usually expect many services which are commonly pro vided in urban areas but not in rural areas. These can be infrastructure services such as reticulated water supply and sealed roads; or social services provided by the community. The costs of such services are often not adequately covered by a 'user pays' charging system but spread over the whole community. • Depletion of Farming Land Rural residential development and its accompanying capitalisation (additional hous ing, access etc.) can cause the withdrawal of valuable farming land from production. • Constraints to Urban Development Rural Residential subdivision adjacent to urban areas can create constraints to future urban development of the land, as fragmented ownership patterns makes co-ordination of urban development difficult. 39 5.5 RURAL RESIDENTIAL LAND USE AS AS A PLANNING TOOL IN THE REGION Although rural residential land use and development can create much detriment, some of the above-mentioned problems may be overcome with development control and commu nity education. It is possible to use rural residential land use as a planning tool to support planning objectives in the Region by strategically locating the use on lands where minimum environmental costs result and there is a positive planning outcome. Utilising rural residential land use as a transition between urban and 'broad-acre' rural uses, in appropriate locations, is one such positive outcome, provided that the sub divisional layout does not accommodate later intensification. One reason for having a rural residential 'buffer' to urban areas is that the types .of negative effects mentioned in Section 5.4.2 above (such as domestic pets and com plaints) are generally even greater between urban and "broad-acre" rural land uses than they are between rural and rural residential land uses. Rural residential development ·can be used to 'soften' the impact of urban land use on nearby rural areas. The other major reason for a rural residential 'buffer' is that the juxta-position of urban densities and 'broad acre' rural lands that exists in parts of the Region often leads to the expectation by adjacent rural landowners that a rezoning of their land to an urban use is inevitable. If extension of an urban area is considered to be undesirable in the long term, then rural residential development could be used to separate urban and 'broad-acre' rural land uses and make future urban expansion difficult. 5.6 CONCLUSION A large demand exists for rural residential development in the Region. The accommoda tion of all of this demand would be detrimental to the Region's special environmental qualities and contrary to the wider interests of the community. However some additional rural residential development, in appropriate areas and with suitable controls, may achieve beneficial results. If further rural residential land use is to be permitted in the Region then it should be on land which is: • relatively close to urban facilities and services; • not to be considered as a potential urban area; • not highly productive rural land; • not of high scenic value or in a culturally significant landscape; • not limited by landslip hazard; • not limited by being floodprone or poorly drained; • not limited by steep slopes; • not environmentally sensitive; • capable of sustaining rural residential use in the long term; • easily accessible; • not in an area of high fire hazard; and • capable of containing domestic effluent within the property. 40 5. 7 REFERENCES . • Scenic Spectrums (January, 1989). Rural Residential Landscape Compatibility Study of the Upper Yarra Valley and Dandenong Ranges Region. Prepared for the Authority • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.) (1988, a). Survey of Real Estate Agents Operating in the Upper Yarra Valley and Dan denong Ranges Region • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.) (1988, b). l Rural Residential Development - Issues Paper · 41 RURAL RESIDENTIAL - POLICY OPTIONS Broad planning policy options for rural residential development in the Region can be divided into two categories: conditions on rural residential development and additional land for rural residential development. CONDITIONS ON RURAL RESIDENTIAL LAND USE AND DEVELOPMENT Two options are identified. ( 1) Retain existing policies. (2) Retain existing policies together with a commitment to the production and distribu tion of detailed guidelines for development in rural areas of the Region. These guidelines should cover design and siting of buildings, site works, natural vegeta tion management, landscaping, ·construction of dams, grazing practice and fire protection. The first option would ensure continuance of ·many policies which are necessary to ensure that rural residential land use and development is compatible with the special characteristics of the Region. The second option is identified because there is much evidence of recent inappropriate development and use of land in rural areas. There is a need for dissemination of more precise information on the use and development of rural land in a manner which can conserve and enhance the Region's special characteristics. There is also a need to re-inforce policies which protect flora and fauna (such as those mentioned in Chapter 14). ADDITIONAL LAND FOR RURAL RESIDENTIAL DEVELOPMENT Three options ..ar-e identified. (1) No additional land for rural residential development in the Region. (2) Provide for additional rural residential development in localities where it is desir able to have a 'buffer' or area of transition between urban and 'broad acre' rural uses. Such areas should contain no environmental constraints to rural residential development but be areas into which future urban expansion would be undesirable. (3) Provide for additional rural residential development in a range of localities through- out the Region provided that the land is: • relatively close to urban facilities; • not to be considered as a potential urban area; • not highly productive rural land; • not of high scenic value or in a culturally significant landscape; • not limited by landslip hazards; • not limited by being floodprone or poorly drained; • not limited by steep slopes; • not environmentally sensitive; • capable of sustaining rural residential use in the long term; • easily accessible; • not in an area of high fire hazard; and 42 • capable of containing domestic effluent within the property. The first option would alleviate the concern .that additional ruial residential development could potentially cause detriment to the Region's important natural resources, scenic landscapes and amenity. However, it would provide no additional land to meet the evident demand and would not take advantage of the ability of rural residential land use to provide an effective buffer or area of transition between urban and rural areas in some circumstances. The second option would satisfy some of the demand for rural residential development in a manner which could have a positive planning outcome. It could reduce the impact of urban land use on nearby rural areas (for example, domestic pets destroying stock, complaints about sprays), make future urban expansion difficult (if this is considered. to be a desirable objective) and help dispel the expectation by adjacent rural landowners that an urban rezoning of their land is inevitable. The third option could meet the demand for rural residential development but could also spread the land speculation, based on subdivision expectations, more widely in rural areas. Further, it could possibly lead to the negative impacts of rural residential develop ment (discussed in Section 5.4) becoming more widely spread throughout the Region. 43 6.0 NON-URBAN LAND 6.1 LOCATION AND DEFINITION Non-urban land (shown on Map 4) includes all those parts of the Region in private ownership which are not occupied by land zoned and used for urban purposes. The areas shown as Rural Residential and Landscape Living, although predominantly used for low density residential and related purposes, are also defined as Non Urban Land (U.Y.V. & D.R.A., 1982,a.). In addition to supporting agr;cultural pursuits such as grazing, crop and timber produc tion, non-urban land is also used for a wide range of other pursuits such as rural residential living, recreation, tourism, infrastructure facilities and various institutional purposes. 6.2 EXISTING POLICIES The Regional Strategy Plan (1982) defines nine Non-Urban Policy Areas based on land suitability and capability as well as on the existing subdivision patterns and land use, (R.N. Phillips & Associates and M.J. Ransom, 1979) and provides a series of detailed subdivision and management policies and action statements (U.Y.V. & D.R.A., 1982,a.). These policy areas fall into four broad categories including intensive cropping, broad scale grazing, mixed and hobby farming and non-farming activities. Each of these is discussed briefly below. Intensive cropping includes Intensive Agriculture 1 and 2 Policy Areas with subdivision minimums of 8 and 20 ha. respectively. The policies for these areas aim to protect the red soil as a resource for intensive agricultural activities compatible with the protection of the landscape and discouragement of non-agricultural pursuits. Broadscale grazing includes Rural 1, 2 and cleared parts of Rural 3 Policy Areas with subdivision minimums of 25, 40 and 40 ha. respectively. The policies for these areas aim to control subdivision use and management of land in order to maintain the potential of the land for agricultural purposes, protect and enhance the lanascape character of the area and protect other values such as flora, fauna and water resources. Mixed and Hobby Farming includes Rural Landscape 1 and 2 Policy Areas with subdivi sion minimums of 8 and 16 ha. respectively. The policies for these areas aim to maintain opportunities for a diverse range of rural uses including grazing, vegetable and fruit production, and hobby farming in a manner which will not jeopardise water quality or landscape values. Non farming activities include Rural Residential and Landscape Living Policy Areas with subdivision minimums of 4 and 2 ha. respectively. These two Policy Areas are generally located in areas of high environmental or landscape values and are used mainly for low density residential living, with some instances of hobby farming. (See Chapters 4 and 5 for more detailed discussion of these areas.) These areas are considered unsuitable for more intensive, urban style residential development, hence the reason for their inclusion in Non-Urban Policy Areas. The policies for these areas aim to control development and further subdivision in a manner compatible with maintenance of landscape and water quality. 45 6.3 LAND USE CHANGES Since its establishment in 1977, the Authority has agreed to only a few areas of Non-Urban land to be redesignated for urban purposes. The largest of these areas, some 23 ha. in Kilsyth, was redesignated from Rural Landscape 2 to Urban 2 Policy Area. Although the latest available information (R.N. Phillips and Associates et. al., 1989) indicates a relatively stable land use pattern since 1982, some important activity adjust ments have occurred within the industry, as illustrated in Tables 7, 8, and 9 below. The apparent decline in overall area and the areas under crops and pastures between 1982/83 and 1986/87 is due to two factors. The first involves the transfer of some 45,000 ha. of land from the Shire of Healesville to the Shire of Alexandra. The second involves the change in definition of a rural establishment, which up to 1985/86 included estab lishments which had a gross income of over $2,500 per annum from rural activities. From 1986/87, this was changed to $25,000, thus reducing the number of rural establishments for the purpose of A.B.S. data collection. TABLE 7 Land Use Patterns ('000 ha) in the Region 5 Year Period Ending 1966/87 1982/83 1983/84 1984/85 1985/86 1986/87 Crop 3.8 4.0 3.7 3.8 3.0 Sown Pasture 27.7 27. 1 26.0 25.2 17.5 Balance including Native Pasture 18. 1 16.6 19. 1 16.8 9.5 Other* 258.0 259.9 258.8 215.9 231. 7 Total Area 307.6 307.6 307.6 261. 7 261. 7 . - Includes forested land in public ownership . Source: R.N. Phillips and Associates Ply. Ltd. et.al. (1989) Rural Study Some significant changes have occurred in crop production between 1982/83 and 1986/87, as illustrated in Table 8 below, with the following trends being most apparent: • Nurseries, cut flowers and vineyards are exhibiting a strong growth. • Fruit orchards have remained relatively stable in total area grown although there has been a steady decline in a number of growers. • Berry crops have remained relatively stable in both the area grown and the number of growers. • Vegetable production has declined rapidly both in terms of area and number of growers. The reason for this trend appears to be dee! ining margin per area of vegetables grown and an inability to increase farm sizes because of the high price of land. 46 ''---. -~ - ''\ '' '' '' '' '' '' Intensive Agriculture 1 Rural 1 Intensive Agriculture 2 - Rural2 Rural Landscape 1 1 Rural3 Rural Landscape2 2 ~3scape Rural Residential Cll0-11115 U,,11 YAllA VAUIT ANO OANDfNONO UNGfS ~fHOt lfT ~on Urban Policy Areas(R.S.P. 1982) Map.4 TABLE 8 Hectares of Principal Crops (Number of Establishments) for 5 Vear Period Ending 1986/87 Base 77/78 1982/83 1983/84 1984/85 1985/86 1986/87 Nurseries/Cut Flowers/Turf 438 500 ( 120) 450 (160) 650 ( 185) 800 ( 180) 750 (140)+ Vegetables 1042 1032 ( 187) 1019 ( 180) 959 (173) 762 (146) 664 ( 111 ) Fruit Orchards 1205 1367 ( 179) 1132 (182) 1165 ( 148) 1371 (152) 1283 (105) Berry Crops 220 158 (156) 153 ( 141 ) 165 (144) 180 ( 151 ) 175 ( 129) Vineyards 43 82 ( 12) 82 ( 14) 102 ( 17) 105 ( 16) 87 ( 10)+ Other** 538 661 (n.a.) 1164 (n.a.) 659 (n. a.) 582 ( n. a. ) 41 ( n. a.) Total 3486 3800 ( 1019) 4000 (980) 3700 (965) 3800 (911) 3000 (538) - Estimates only - Includes fodder and grain crops + - According to local sources, this figure is a gross underestimation Source: R.N. Phillips & Associates Pty. Ltd. et.al. (1989) Rural Study. Some significant changes have also occurred in livestock production as illustrated in Table 9 below, with the following trends being apparent: • The most significant change has occurred in dairy stock numbers, the total number of which has fallen by more than a half in ten years. • Beef production which is the dominant enterprise in the Region, has remained stable in numbers over the past ten years. The apparent drop in 1986/87 is due to changes in ABS data collection, which would have excluded many hobby farmers in the survey (R.N. Phillips and Associates Pty. Ltd. et. al., 1989). • Sheep production has experienced only a small decline over the past 10 years. TABLE 9 Regional Livestock Numbers - 1982/83 to 1986/87 Base 1977/78 1982/83 1983/84 1984/85 1985/86 1986/87 Dairying 8,245 5,337 4,960 4,967 4,267 3,397 Beef 37,059 37,956 37,618 37,290 38' 149 22,476 Sheep 15,776 15,000 17,000 14,000 12,000 12,000 Source: R.N. Phillips & Associates Pty. Ltd. et. al. (1989) Rural Study The horse industry is also significant in the Region, although no reliable statistics are available on either the total numbers or the numbers of horses per establishment (R.N. Phillips and Associates Pty. Ltd. et. al., 1989). 47 6.4 ISSUES The major issues pertaining to Non-Urban land concern its continuing use for productive agricultural purposes and maintenance of rural character in view of many non-compatible demands. In the past six years a strong demand from urban based interests for rural residential living, especially fo·r lots less than 10 ha., has increased land prices to the levels that are in many instances well beyond the productive value of the land. These pressures have been particularly strong in parts of the intensive agriculture area of Silvan and Monbulk where past subdivision patterns and land management practices have resulted in many small allotments with badly degraded soils not capable of efficiently supporting tradi tional agricultural pursuits. Many landowners see re-zoning and subdivision into smaller lots as the only solution as they are not willing or able to make structural changes to more productive crops and to adopt other land management practices. This situation is further exacerbated by continuing withdrawal of Government support for research and extension services. Many other parts of the Region are experiencing similar pressures for further re-zoning to urban and rural residential living. In addition, there is an increasing demand for the use of rural land for various institutional purposes and recreation and tourism development. Although many of these uses are compatible w·ith current policy provisions, care must be exercised to protect the productive agricultural land from alienation and to protect landscape values and other significant features of the Region. One of the serious issues confronting· the future of agricultural land is the apparent inability of planning controls to maintain the land in agricultural use. This situation is becoming particularly serious in urban-rural fringe areas where farming interests cannot compete with non-farming interests for land prices. The result is very often the complete loss of land from agricultural use, an increased pressure on remaining farming activities imposed by urban type demands such as increased services (which usually lead to highly increased rates), and restrictions on the use of machinery and agricultural chemi cals. Due to a combination of the above factors, many genuine farmers are selling their properties and moving further from Melbourne where the prices are still favourable and constraints to farming not as great. The continuous decline and clearance of native vegetation is an issue of importance in the Region and is discussed further in Chapter 14.- It is estimated that appreciably less than 10% of reasonably intact native vegetation on freehold land still remains (McMahon, A.R.G. et al, 1989), and that, if the current degrading practices continue, this resource could largely be eliminated in 2 to 3 decades. Illegal vegetation clearing is widely regarded as the biggest contributor to this problem. It is essential that these trends be arrested and .if possible reversed through strict controls and policing of vegetation removal and through replanting of degraded areas. Agro-forestry can play an important role in revegetation of many areas while at the same time contributing to farm viability. In recent years there has been a prol iteration of plastic igloos, particularly in the intensive agriculture areas of Silvan and Monbulk. These structures are used by growers to extend the growing season and to provide a controlled climate environment which enables higher production and better quality control. There are however a number of problems associated with the igloos, including adverse effect on landscape, increased run-off, and resultant soil erosion. Disposal of plastic is also a problem as the plastic is usually changed on igloos every 2 - 3 years. These matters must be addressed in order to provide appropriate guidelines for future development. 48 A further issue of concern is illegal soil removal which is becoming widespread in some parts of the Region, particularly in areas containing high quality soil. This is creating loss of a valuable agricultural resource. There is also a need to modify some of the existing policies in the Regional Strategy Plan, which have over a period of time proved themselves either unworkable or inad equate in furthering agricultural activities. These include the existing provisions for forestry activities, which are regarded inappropriate, and the abolition of density matrix subdivision technique which has been found deficient in many respects (R.N. Phillips and Associates Pty. Ltd. et.al., 1989). It also has been suggested that the policies applying to tenemen't holdings should be modified and replaced, where appropriate, with a different solution. 6.5 POLICY IMPLICATIONS Overall, the planning policies for non-urban land contained in the Regional Strategy Plan have, with some exceptions, provided appropriate means for continuation and further development of a diverse rural industry. Some major structural adjustments to agricultural industries have taken place in the past ten years, such as a marked decline in ·dairying and vegetable production whilst other activities such as beef, viticulture, nursery and flower production have increased in importance. At the same time, pressures on agricultural land have intensified to the point where structural changes may no longer be able to maintain the land in agricultural use without considerable outside assistance and increased protection. The policy directions for non-urban land must therefore be based on building upon the framework already established. This would mean the maintenance and in some instances tightening up of subdivision controls and continuation of the land use provisions in a manner to allow for maximum flexibility for structural readjustments of agricultural uses. However, planning measures alone may not be sufficient to maintain agricultural land in productive pursuits. For this reason, it will be necessary that other matters such as rate relief and Government support in the form of extension services and financial assistance be addressed as well. The protection and maintenance of the Region's landscapes is seen as a significant priority and is required by the Upper Yarra Valley and Dandenong Ranges Authority Act and Statement of Planning Policy No.3. It is therefore important to manage land use changes, including the siting and design of buildings, structures and igloos, in a manner compatible with the high visual quality of the Region. The importance of conservation and protection of the remaining native vegetation and soils must be given a high priority. Re-establishment of farm trees as part of improved farm management practices is also seen· as a priority. It is also important that planning provisions are changed to allow for development of forestry activities, including estab- 1ishment of native plantations and agro-forestry, in appropriate areas. 6.6 REFERENCES • McMahon A.R.G., Frood D., Bedggood S.E. & Carr G.W., (1989). A Review of the Sites of Botanical Significance in the Upper Yarra Valley and Dandenong Ranges Region. • R.N. Phillips & Associates Pty. Ltd. & M.J. Ransom ( 1979) Rural Study. Prepared for the Upper Yarra Valley and Dandenong Ranges Authority. MINISTRY FOR PLANNING l\NQ ~!:l.V.1BONl).1E~I ll8RAR.Y 49 • R.N. Phillips & Associates Pty. Ltd. in conjunction with W.J. Gittins & Associates Pty. Ltd. & Dennis Williamson: Scenic Spectrums (1989) Rural Study. Upper Yarra Valley and Dandenong Ranges Authority. • Upper Yarra Valley & Dandenong Ranges Aqthority (UYVDRA), 1982, a. Regional Strategy Plan. October 1982. • Upper Yarra Valley & Dandenong Ranges Authority (UYVDRA), 1982, b. Investigations Report. October 1982. 50 NON-URBAN LAND - POLICY OPTIONS OPTION 1: RETAIN EXISTING POLICIES OPTION 2: PROVIDE FOR INCREASED PROTECTION OF AGRICULTURAL LAND This option would provide for maximum protection for productive agricultural land. It would involve creation of "agricultural preserves" for the areas of high agricultural productivity, ie. land currently included in Intensive Agriculture, Rural 1, parts of Rural 2 and parts of Rural Landscape 1 Policy Areas. Within these areas, further subdivision would be prohibited and only agricultural and closely related land use would be allowed. There would be a need for greater flexibility for land use provisions in the areas outside the "agricultural preserves" to allow for uses that could not locate on the land designated as "agricultural preserves". This option would maintain the existing minimum subdivision prov1s1ons in the area? outside the "agricultural preserves". In addition, land uses such as forestry and agro forestry would be allowed to take place in the areas outside agricultural preserves in accordance with appropriate performance standards. OPTION 3: MODIFY THE EXISTING POLICIES This option would retain most elements of the existing policy prov1s1ons such as definition of policy areas, subdivision minima, land use and land management provisions. However the following changes would be made: • provide for forestry activity on non-urban land including native species plantations and agro-f orestry; • abolish the "density matrix" subdivision provision and modify the "density" subdivi sion provision to allow for a more flexible lot size; • where necessary, remove the "tenement control" prov1s1on as a 'broad brush' planning mechanism and, where appropriate, introduce "special study areas" to allow for restructuring of allotments; • provide for greater protection of native vegetation, especially in the areas of Botanical and Zoological significance; • develop standards for siting of rural structures, including igloos; • provide for minor adjustment to Policy Area boundaries, where necessary. Option 1 would not provide for any changes to be made and as such it would not allow any corrections to several elements of existing pol icy which have been found inappropri ate in the past. On the other hand, it would provide for continuity and certainty for future planning of non-urban land. Option 2 would be a major departure from current planning mechanisms because it would introduce very restrictive controls applying to "agricultural preserves". It would require acceptance by the land owners and full support and assistance from the Local and State Governments. This option would provide strict limitations on the flexibility of land owners within "agricultural preserves'' to use their land for purposes other than agriculture. On the other hand, it would help ensure that the best agricultural land is maintained for productive purposes. 51 Option 3 would maintain most of the existing positive policies and planning certainty for use of non-urban land but it would remove some of the planning mechanisms found inappropriate in the past. It would also provide for establishment of forestry activities and agro-forestry. On the other hand, this option, by allowing greater flexibility for forestry and by removing "tenement controls" in some instances, may be considered by some as· undesirable because it could lead to a reductiion in the stringency of planning controls in some areas. 52 7.0 PUBLIC LAND 7 .1 EXTENT OF THE REGION'S PUBLIC LAND Public Land comprises 73% (or approximately 1970 sq. kms.) of the Upper Yarra Valley & Dandenong Ranges Region's land area. Most of this public land comprises the forested, mountainous eastern part of the Region, but public land is also scattered throughout the settled western part of the Region, particularly within the Dandenong Ranges. Map 5 shows the Region's Public land and it's principal uses. The public land presence dramatically affects the Region because of its size and loca~ion and because of the resources it contains. 7 .2 . ROLE OF THE LAND CONSERVATION COUNCIL Recommendations for future use of public land in Victoria, including tenure and manage ment responsibilities, are made by the Land Conservation Council. Following consider ation of these recommendations the Government has made many decisions affecting these matters over a number of years. The current provisions of the Regional Strategy Plan are sufficiently flexible to accommodate the determinations of Government. 7 .3 LAND CONSERVATION COUNCIL'S MELBOURNE STUDY AREA RE PORT 1973 The report of the Land Conservation Council on the Melbourne Study Area of December 1973 described and assessed the natural resources of the public land. The U.Y.V.D.R. Region comprised part of the Melbourne study area. The report described the nature of the land in terms of geology, physiography, climate, water resources, soils, vegetation and fauna. Land use was covered in terms of hazards, nature conservation, recreation, hardwood and softwood timber, agriculture, minerals, water utilization, other public utilities and land use relations. Finally, the Region's Public Land was divided into blocks and each block described in these terms and its significance assessed. In broad summary the resources on public land in the U.Y.V. & D.R. Region have public utility for the values of water and timber production, flora and fauna conservation, recreation, landscape protection and many other minor uses. Such a vast area of public land generates many opportunities and constraints for the Region. These opportunities can be identified in the potentials for utilizing the resources, particularly for water and timber production and recreation. The constraints relate to the barriers to communication that occur, and the identified hazards (soil deterioration, fire, water, fungi, pest plants, vermin, insects and other pest animals). 7 .4 RESPONSIBILITY FOR PUBLIC LAND MANAGEMENT The primary responsibility for management of public land in the Region lies with the Department of Conservation Forests and Lands (D.C.F. & L.), and the Melbourne and Metropolitan Board of Works (M.M.B.W.). The M.M.B.W. is responsible for the management of the Region's extensive water catchment areas, most of which are closed to public access. The D.C.F. & L. was formed as a result of major re-structuring of the Government administration involving many Departments and statutory bodies with responsibilities for public land, including the Division of Fisheries and Wildlife, the National Parks Service, the Soil Conservation Authority, the Lands Department, the Forests Commission and 53 portion of the Ministry for Conservation. The purpose of the restructure was to integrate previously separate Departments involved in public land management, provide a more effective administrative service to harness expertise on the broad issues involved in Public Land and to decentralise personnel and decision-making to make the processes of government more responsive to the requirements of the community. The machinery of Government for controlling the public land resource is now radically different to the machinery operating when the primary decisions on land allocation and management were made and when the Regional Strategy Plan was approved. 7.5 LAND CONSERVATION COUNCIL'S REVIEW OF MELBOURNE STUDY AREA DISTRICT 2 On 27th May, 1987 the Land Conservation Council (L.C.C.) announced the start of an investigation for a review of the uses of public land for that portion of the Melbourne Area defined as District 2. In general, this covers land east of the Hume Highway and Port Phillip Bay extending east as far as Lake Eildon and Moe (i.e. it includes all of the U.Y.V.D.R. Region). A report on this investigation is expected in late 1990. At that stage public submissions will be invited and the Council will formulate proposed recommenda tions as part of the statutory process involved in the preparation of a revised set of recommendations to Government. 7 .6 CO-ORDINATION OF LAND CONSERVATION COUNCIL'S REVIEW AND AUTHORITY'S RE-INVESTIGATION OF THE REGION While there is an overlap in terms of subject matter between the investigations of the L.C.C. and the Authority, the co-ordination bet- ween officers of the two bodies has ensured that no duplication of research has taken place. It was agreed that at this stage the con- centration by the. Authority should be on private land, since the L.C.C. is confined to examining public land, with the overlapping interests of both bodies being the subject of discussion as appropriate. It is suggested that this approach is appropriate for the immediate future. The consider ation by the Authority of public land management and landuse allocation should be held in abeyance until such time as the L.C.C. has further developed its investigation into Public land. This will enable further consultation to take place between the organisations as the issues reach further resolution. This should not inhibit the Authority from detailed review of the extent of implementation of the existing Regional Strategy Plan as it affects public land (Chapter 17) while deferring the Authority debate on the major issues dealing with public land until the appropriate forum is available under the provisions of the Land Conservation Act. Therefore if there are problems with implementation of existing public land policies of the R.S.P. then they should, if possible, be amended to alleviate these problems but the philosophic approach of the policies should not change until after the L.C.C.'s review of Melbourne Study Area District 2. · The continuing co-operation between the Authority and the L.C.C. and the Authority's input with the LC.C's review will ensure a co-ordinated approach to allocation and management of public land. 54 ____~ ...,10 15 kilometres D VAR.RA D A A Catchments Closed B Catchments Other Parks c Forest D Other Public Land E Reference Areas D Public Land Map 5 7. 7 REFERENCES • Land Conservation Council, Victoria (1973). Report on the Melbourne Study Area. Melbourne • Land Conservation Council, Victoria ( 1977). Final Recommendatoins, Melbourne Study Area 55 PUBLIC LAND- POLICY OPTIONS It is not considered necessary to generate planning options for public land, at this stage. As discussed in Section 7 above, the Land Conservation Council, which is responsible for making recommendations to Government on futuie use of public land, is in the process of reviewing the area. It is considered necessary for the Authority to have input into this review. In the meantime, it is suggested that the current policies of the Regional Strategy Plan which relate to public land, with appropriate modifications to allow for administrative and management changes, should continue, at least until the adoption of the Land Conserva tion Council's Final Recommendations by the Government. It is important that the referral to the Authority of works and undertakings on public land continues in order to ensure compliance with the Regional Strategy Plan. The Authority, in conducting the strategic planning for land in the Region, has con centrated on private land. Implicit in this action is the assumption that the planning of public land will remain substantially unchanged as a result of the Land Conservation Council's review. · •. 56 8.0 RETAIL AND COMMERCIAL CENTRES 8.1 INTRODUCTION Policies for retail and commercial centres are vital components in the strategic planning and developmemt of the UYV&DR Region. It is important that the Region's centres are accessible, comfortable and attractive places for people to visit and work in. It is also important that the planning system is flexible enough to cope with changing retail and commercial trends while encouraging adequate choice for consumers. A study of retail and commercial centres in the Region, and of their future planning requirements, has been undertaken for the Authority by USE/Econsult ( 1988). This chapter summarises the consultants' findings relating to size and functional requirements of the centres, discusses issues arising as a result of these findings, examines conclu sions reached by the consultants in addressing these issues, and explores policy implications which may require consideration if the consultants' conclusions are acted upon. 8.2 EXISTING PROVISIONS AND FUTURE RE;QUIREMENTS 8.2.1 EXISTING CENTRES For topographical and transport reasons, retail and commercial centres within the Region operate in two distinct trade catchments - a northern sector in the Upper Yarra Valley and northern Dandenong Range area, within the Shires of Healesville, Lillydale and Upper Yarra, and a southern sector consisting of the southern portion of the Dandenong Range area within the Shire of Sherbrooke. The northern sector is dominated by the retail and commercial centre of Lilydale, and the large free-standing and predominantly retail centre of Chirnside Park. These are aug mented by a number of shopping centres in townships along the main arterial roads - including Kilsyth, Mooroolbark, Mt Evelyn, Seville, Yarra Junction, Warburton, Healesville and Yarra Glen - and many scattered smaller centres which serve mainly local conve nience (and to a lessor extent weekend tourism) needs. The southern sector's main centres are Emerald (serving the eastern part of the Shire of Sherbrooke and part of the Shire of Pakenham) - and Monbulk, Belgrave, Upwey and Upper Ferntree Gully on the Monbulk Road/Burwood Highway route to the City of Knox and to Melbourne's eastern suburbs. There is no regional centre comparable to Lilydale or Chirnside Park within the southern sector. 8.2.2 RETAIL AND COMMERCIAL FLOORSPACE AND CENTRE USAGE The study upon which the present Regional Strategy Plan policies were based (Connor 1979) reported on a serious oversupply of retail and commercial floorspace in the Region at that time (including the Chirnside Park development, then under construction). With the growth of population since then, the situation has changed. Based on statistical relationships between population, average household income and retail and commercial floorspace, there is now a significant undersupply of such floorspace in the Region (USE/Econsult, 1988). The reversal from oversupply to undersupply is illustrated by a net increase of only 7,890 sq m of retail floorspace (compared with Connor's forecast requirement of 61,000 sq m), 57 ------ and the development of 15,500 sq m (gross) of office space (compared with Connor's forecast requirement of 33,500 sq m). A reason for this undersupply appears to be that, although Connor predicted that the demand for more floorspace would be evenly spread, significant expansion was generally I imited to the larger centres. The undersupply of retail floorspace is reflected in the USE/Econsult (1988) estimates of "escape" expenditure or "leakage", which is the net percentage of the Regional popula tion's household income available for retail purchases which is spent outside the Region (after deducting the percentage "captured" for the Region from other areas). Leakage from the Region averages 44% overall, and varies for different types of purchase. It is highest for comparison goods (large household 77%, clothing 45% and small household 39%), less for weekly shopping and groceries (27%), and lowest for bread, milk and daily convenience goods (18%). This overall undersupply is expected to be partly filled in the near future, with floorspace at present under construction or proposed within the Region amounting to 13,245 sq m retail and 8,625 commercial. Nevertheless considerably more floorspace is proposed or under construction in three centres outside .the Region which draw significant trade from within the Regio.n. TABLE 10 FLOORSPACE PROPOSED AND UNDER CONSTRUCTION IN NEARBY CENTRES (sQ.m.) Croydon Retail 10,000 Other Comm. 15,000 Total 25,000 Knox City 30,000 30,000 Ringwood 50,000 30, 100 80,000 90,000 45,000 135,000 Results of a USE/Econsult telephone survey of shoppers showed different trading pat terns in different parts o( the Region. Weekly shopping had a large leakage of expen diture lost from Sherbrooke to centres in the City of Knox, compared with relatively low levels lost from the Region's northern municipalities. Chirnside Park and Lilydale were the most frequently used centres - Chirnside Park was the most important for clothing and Lilydale the most consistent performer in terms of comparison goods (e.g. large and small household items). Traditional town centres - especially Lilydale and to a lesser extent Belgrave, Yarra Junction and Healesville - offered the most retail and commercial services and attracted the highest market shares of restaurants ·and fast food outlets. The smaller centres had a greater proportional use for daily convenience goods, however some of these also had significant use for weekly shopping and groceries. The most frequently patronised centres outside the Region were Ferntree Gully, Ringwood/Eastland, Croydon, Knox City, Boronia and Mountain Gate. Latest available figures for retail and commercial floorspace in the Region are (USE/Econsult, 1988): • retail (in retail and commercial centres) - 119,800 sq.m. (1988); • peripheral retail (outside retail and commerc,ial centres) - 83,000 sq.m (1981); and • commercial - 59,000 sq.m. 58 The 1979 (Connor) study defined commercial services as non-retai I s~op-front establish ments (banks, hairdressers etc.), but did not analyse free-standing office developments which were non-existent in the Region ·at that time. Commercial floorspace, including offices, has emerged as a key element of town centre use during the past 1O years. The USE/Econsult report highlighted a significant componenf of peripheral retail floorspace - including car sales, building supplies, and indoor and outdoor display areas - which was not included in the Connor study. The three main peripheral retail concentrations are in the Shire of Lillydale - immediately south and east of the Town Centre and along Canterbury Road in South Kilsyth. A fourth concentration is adjacent to the Upper Ferntree Gully centre along Burwood Highway in the Shire of Sherbrooke. 8.2.3 TRENDS IN THE DEVELOPMENT OF RETAIL AND COMMERCIAL CENTRES Population growth combined with changing retail patterns have, according to USE/Econsult, created a need for retail and commercial facilities which, if not provided, would result in lack of amenity in the commercial centres, a poor mix of retail and other community facilities, and lost opportunities for the creation of true community centres accommodating a wide range of activities (e.g. cultural, recreational and entertainment). New developments should be planned to enhance the environment and integration of the Region's commercial centres, to avoid traffic congestion and noise, and to help the smaller towns retain their "village-like" atmosphere and other qualities which are so important to the overall character of the Region. It is seen as necessary to acknowledge major trends in retailing which can be accom modated without sacrificing other important environmental and community values in centre development. These trends include: • concentration into fewer but larger establishments, offering one-stop shopping with easy car parking, and requiring large sites which are difficult to consolidate in or near established centres because of small and fragmented land holdings; • polarisation of both supermarket and discount department store developments into very large (5,000 sq.m.) or smaller (up to 1,500 sq.m.) operations; • the popularity of food markets, mid-size stores (400-600 sq.m.), and "Sunday mar kets" in major centres; and • continued demand for large floorspace areas for display showrooms and other peripheral trading. While these indicate important new roles in the prov1s1on of retail and commercial facilities, the consultants recognise that people do value a centre with environment and surroundings which encourage a wide range of social, cultural and entertainment activi ties. 8.2.4 POPULATION GROWTH AND FUTURE FLOORSPACE PROJECTIONS Latest population estimates, compiled with information supplied by the Authority and based on present zonings, show numbers peaking in most municipalities by the mid 1990s (USE/Econsult, 1988). Rounded off figures for maximum population in 1996 are Healesville 17,000, Lillydale 89,300, Sherbrooke 38,800, and Upper Yarra 21,400 - adding up to 166,500 for the Region (compared with 130,700 in 1986). Future retail floorspace requirements for the Region have been calculated by the consul tants from estimates of numbers of households (derived from population figures), projec ted household expenditure for each category of floorspace, and expenditure leakage for each category. The consultants propose three alternatives for retail expenditure retained within the Region (i.e. total minus leakage): 90% maximum growth, 70% moderate 59 growth, and (the current) 56% low growth. Retail floorspace requirements (additional to the existing 119,800 square metres) based on these alternatives are as follows: TABLE 11 RETAIL FLOORSPACE REQUIREMENTS (sq.m.) OPTION 1991 1996 2001 Max. Growth 42,350 74' 110 95,210 Mod. Growth 42,350 66,060 76,540 Low Growth 35, 190 . SA, 110 63,210 In calculating commercial floorspace .requirements, the consultants have projected a 10 year absorbtion rate and believe that this additional space will contain a higher propor tion of free-standing offices than at present. Forecasts are as follows: TABLE 12 COMMERCIAL FLOORSPACE PREDICTIONS (sq.m.) EXISTING (1988) 1991 1996 2001 Commercial 58,870 67' 150 80.965 94,780 Add it i ona l Comm. 8,280 22,095 35, 910 8.2.5 OPINIONS FROM SHOPPERS AND TRADERS, AND OTHER CENTRE STUDIES Before considering strategies for centre development and evaluating the effectiveness of the present planning system, it is important to acknowledge the opinions of the Region's shoppers and traders, and the conclusions from·other centre studies unde.rtaken in recent years. Some significant findings were interpreted from the household telephone survey con ducted by USE/Econsult ( 1988): • nearly two-thirds of respondents used centres outside the Region, mainly in the City of Knox (reflecting generally poorer facilities in the Shire of Sherbrooke); • the vast majority travelled to shopping centres by car, nearly 40% coming a long distance; the most common centres involving long distance travel were Ringwood/Eastland, Chirnside Park, Melbourne Central, Knox City, Doncaster and Boronia - preferred because of their wide range of comparison goods and specialty shops; and so· • the strongest trading centres for all weekly commodities were Chirnside Park and Lilydale in the northern sector, and ·Belgrave and to a lesser extent Emerald in the south. Interviews were conducted with traders and "business representatives from 16 centres in the Region. Main comments were as follows: • while many respondents recognised the need to prevent indiscriminate develop ment, there were difficulties in gaining approval for new proposals despite strong developer interest; • there was an undersupply of retail and commercial floorspace, inadequate car parking in some areas, and need for more physical services (including sewerage) in rural villages; • flexibility and responsiveness to changing circumstances is warranted; there were varying opinions about the application of the commercial centre hierarchy (regarded by some as too rigid), and about the value of Overall Plans of Development; and • some believed that a regional planning model gave a better planning result, being more detached from local politics - however the Authority needed to communicate better with the community and provide more positive input (rather th.an reactionary). Since the Connor (1979) report, a number of retail and commercial centre studies have been carried out within the Region. These studies have been undertaken by a number of consultants, and with certain exceptions, recommend significant expansion of the particu lar centres being examined. The studies have a number of consistent themes, the most common being a recognition of the changing role and relationships between centres since the 1979 study, and a belief that the hierarchical approach adopted in the Strategy Plan should be reviewed. Separate studies and analyses carried out for the Ringwood, Knox City and Croydon centres outside the Region have assumed the UYV&DR Region's population to be a major contributor to the trading and expansion in these centres. 8.3 ISSUES IN PLANNING FOR NEW RETAIL AND COMMERCIAL DEVEL OPMENTS 8.3.1 CONSEQUENCES OF HIGH LEVELS OF ESCAPE EXPENDITURE Provision of retail floorspace in the Region is still low by metropolitan. standards. USE/Econsult believe that if this situation remains, and while major centres outside the Region (and near its boundaries) keep_ growing, a large percentage of the Region's population will continue to patronise these centres, and opportunities for the creation of of true community centres within the Region (with recreational and other facilities) would be lost. · The consultants described three approaches towards future growth of retail and commer cial centres in the Region: 1. Discourage substantial growth in the UYV&DR Region: Residents would have to accept lower standards in the provision of services. 2. Disperse growth throughout the Region: Despite attempts to do this through the present Regional Strategy Plan policies, most investment by the private sector has been attracted to the larger centres. Approximately 82% of retail and commercial expansion has occurred in the the Region's major centres, including Chirnside Park, Lilydale, Mooroolbark, Kilsyth, Monbulk, Belgrave, Upwey, Emerald, Yarra Junction and Healesville. 61 3. Concentrate growth in a limited number of the Region's centres: The basic problem is to assemble substantial parcels of land where appropriate accessibility, parking and amenities could be provided. The consultants believe that the concentrated growth option would best meet the study objectives of providing the most accessible, comfortable and attractive centres, with adequate choices for consumers, despite the difficulty in assembling sufficiently large areas of land. This option would encourage the most efficient and effective performance from the retail and commercial sector. In addition, they believe that planning for specific retail floorspace requirements will need to be reviewed, as follows: • Daily convenience shopping is adequately catered for, although further local centres will be required .near areas of population growth. • Weekly shopping opportunities need significant improvement in the southern sector (i.e. the Shire of Sherbrooke). e Smaller centres should be given the opportunity to provide an adequate range of weekly shopping requirements. • Opportunities for comparison shopping such as clothing and small household goods should be significantly improved in the northern sector. This could be achieved within an integrated centre with a department store, a full range discount depart ment store, a modern high quality supermarket, and a wide range of retail, re creational and commercial faci I ities. 8.3.2 CONTROLS FOR RETAIL AND COMMERCIAL CENTRE DEVELOPMENT The Regional Strategy Plan's policies for retail and commercial centre development use a 7-level hierarchy of centre classification, with floorspace as a major controlling mecha nism for centre expansion. Each level of the hierarchy is described in terms of the number and type of shops and.commercial premises, presence and size of a supermarket, and total floorspace. Of the 37 recognised centres in the Region, eight are identified for possible upgrading in status. Development of other centres requires conformity with an Overall Plan of Development - or in its absence does not prejudice the future planning of the centre - and is limited to infill and renewal which does not change the centre's status. The following observations are made by USE/Econsult regarding the effectiveness and appropriateness of the existing control mechanism. • Application of the current hierarchy is seen as too rigid and cumbersome. Simplistic floorspace controls overlook issues such as: ~ minimum size of development modules to cope with store types and sizes, integrated and undercover activities, and easily accessible parking; - replacement of retail activities· from traditional town centres - with personal and commercial services; and - a new relationship between commercial and retail floorspace. The hierarchy of centres should .be one of ?.number· of means to an end and part of an overall strategy reflecting the Region's· needs and the particular centre's func tions. • In practice, there was difficulty in preparing an Overall Plan of Development, given: - the detailed information requirements and lack of resources for their prepara tion; 62 - the interactive nature of many existing centres requiring economic performance analysis; and the lack of motivation due to fear of inflexibility in the process of OPD preparation and implementation. • The emergence of office development has added a new meaning to the concept of suburban activity centres during the past 1O years. This type of development has spread out from the Melbourne Central area into the eastern suburbs, offering opportunities of decentralised employment along major roads and close to public transport, and often not needing shopfront exposure. The consultants believe that controls for future retail and commercial development should be performance based, spelling out the conditions under which development would be permitted rather than setting up cumbersome administrative regulations. For example, a statement containing strategic objectives, growth targets and development objectives (for land use, vehicle movement, environmental aspects and amenity) could be developed for each centre. This statement would be used as a basis against which redevelopment or new development proposals could be measured, and proposals which would have a detrimental effect on other commercial centres could be discouraged. 8.3.3 ROLE OF AUTHORITY · Perceptions of the role which the Authority should take in future retail and commercial centre development range from very involved in the maintenance of regional controls - to completely detached leaving planning responsibilities with municipal councils. The con sultants believe that the Authority should undertake more of a facilitating role and be concerned with regional issues rather than. local detail. They have taken the view that, should a reasonable level of self-sufficiency (similar to other areas of metropolitan Melbourne) be required, the Hegion should aim to progres sively increase the percentage of retained .retail expenditure (i.e. total minus "escape" - see 8.2.2) from the current 56% to a Maximum Growth level of 90% by the year 2001. This option means that the Authority would have to take an "aggressive" approach to stimulate high quality development. A Moderate Growth level of 70% implies that tme Authority takes a "pro-active" role in setting the conditions for retail and commercial expansion, and a Low Growth level reflects a "passive" role for the Authority. 8.3.4 POSSIBILITY FOR A MAJOR CENTRE IN THE NORTHERN SECTOR The Region is approaching a level of population where consideration could be· given to the development of a large centre with a full range of retail and commercial facilities, including a department store, large discount department store, substantial commercial and office accommodation, and a wide range of community facilitie?. Such a centre would serve as the main retail, commercial and administrative focus for the Region .. If the centre was close to major arterial roads and was well served by public transport, it would be in keeping with the State Government's policies for the development of large activity centres, strategically located throughout the metropolitan area, and easily acces sible by both road and public transport to their surrounding residential communities. In time and given sufficient catchment population, such a centre might qualify in status as one of Melbourne's "District Centres", gaining the benefit of positive government support for its development as an integrated retail, commercial, community and entertainment focus for its regional population. The consultants believe that the northern sector of the Region, within the Shire of Lillydale, would be the obvious location for a major centre. 63 8.3.5 MAJOR DEVELOPMENT IN THI; SOUTHERN SECTOR There is insufficient population in the southern sector to sustain an independent regional centre, and it seems likely that most of this sector's requirements for comparison goods will continue to be met outside the Region. Nevertheless the consultants recognise a need to rectify a major deficiency in the provision of weekly shopping opportunities within the Shire of Sherbrooke. While Belgrave has an established role as the dominant administrative centre, it has severe physical constraints which limit its expansion possibilities. By comparison, USE/Econsult believe that Upper Ferntree Gully would have a number of advantages in accommodating significant retail expansion, i.e.: • its location on the western side of the Shire of Sherbrooke where it could attract most of the traffic flows into and out from the Shire; • the fact that a significant expansion of the centre is currently being exhibited; and •· the fact that a single large site is readily available. 8.3.6 OTHER CENTRES IN THE REGION The consultants see other centres in the Region as falling into two categories - those large enough to attract development with a regional impact, and others likely to have a purely local impact. Centres having a regional ·impact and requiring regional controls would include larger centres with significant cross-municipal or cross-regional influences, and perhaps some tourist villages. Rather than concentrating on levels of floorspace in these centres, the aims would be to control factors relating to tourism appeal and environmental integrity, and to protect the centres from growth of other centres outside the Region but close to its boundaries. Centres having purely local significance include weekly and daily convenience centres. Provided that local planning regulations can effectively control growth, full responsibility for these centres should be left with the local municipalities. The. Authority's role would be at the initial rezoning or establishment stage, and when expansion proposals would change the centre's function. 8.3. 7 COMMERCIAL AND PERIPHERAL DEVELOPMENTS Government predictions of office construction indicate that 73% of proposed suburban office space in the metropolitan area will occur in Melbourne's eastern sector, which includes the Shires of Healesville, Lillydale and Sherbrooke. This is seen as providing more employment for the Region's population, and if the current development wave continues, would result in the development of a significant amount of office space in the Region itself. Government policies support the grouping of commercial and office ser vices within or adjacent to established centres; they should provide adequate exposure, access and parking for freestanding office blocks without necessarily competing for s_hopfront positions. The consultants believe that a high proportion of commercial development should be located in a limited number of centres requiring regional controls, with a major share within the main regional centre. This does not preclude consideration of developments such as office parks outside commercial centres - such proposals being assessed on their merits. 64 The consultants also believe that future provisions for peripheral retail floorspace should be subject to significant scrutiny to establish realistic boundaries, to prevent competition with core retailing, to control signage, and to ensure adequate exposure, parking, access and traffic controls. One or two locations within the Region should be promoted for these purposes. 8.4 POLICY IMPLICATIONS It is clear from the above findings that the present Regional Strategy Plan policies for retail and commercial development need to be reviewed. These policies require Respon sible Authorities to accept a certain hierarchical status and general limitations on floorspace for each centre, and to prepare an Overall Plan of Development, in consulta tion with the Authority, which provides for the centre's future development. In practice, the preparation of Overall Plans of Development is not progressing satisfactorily, and the floorspace and hierarchical controls are seen as ends in themselves - rather than as means to an end. In their report, USE/Econsult have argued for the preparation and use of centre objec tives, growth targets, development objectives and performance measures in the planning of retail and commercial centres and in the assessment of development applications; They consider this would make more possible the provision of a complete range of retail and commercial services within the Region, the overall improvement of amenities for all centre users, and the establishment and/or enhancement of true community centres for the Region's population. A preferred retail and commercial centres strategy, as described by the consultants, \~. would identify particular objectives, targets and performance measures for centres con sidered as having regional significance. Such centres would include those with signifi cant cross-municipal and cross-regional influences (e.g. Chirnside f'.>ark, Lilydale, Mon bulk, Emerald and Upper Ferntree Gully), those having high tourism appeal and environmental sensitivity (e.g. Healesville, Warburton, Olinda and Belgrave), and those which may need protection from possible intrusive growth, of other nearby centres outside the Region's boundaries (e.g. Upper Ferntree Gully and Kilsyth). USE/Econsult consider that full responsibility for the remaining centres should be placed at the local government· level, provided that local planning regulations could effectively control growth. Regional involvement would occur only if there was a change of function of the centre, such as with the addition of a very large supermarket. Any new daily convenience centre would be subject to regional scrutiny only at its initial establishment and rezoning stage. The location and development of a large activity centre is a major strategic issue for the future planning of the UYV&DR Region. Such a centre could make a significant contribu tion towards meeting the shopping, commercial, community and entertainment needs of a growing population - and many people would no longer have to travel long distances to centres such as Ringwood and Knox City for services which are at present not readily available in the Region. As the catchment population grows towards 150,000 people, it may be useful and important to attract government support for the development of a major centre in the Region, with a view to achieving the long-term potential of District Centre status. This status has already been given to 15 metropolitan centres which have been selected for special government assistance because of: (1) easy accessibility to public and private transport; (2) a large range of shops and serviCEi1S (including those available outside working hours); 65 (3) capacity of utility services to meet further demands; and ( 4) a regional population of about 150,000 people. The consultants believe that the Lilydale township should be given first option for development of a major activity centre, and if this option is not taken up in the short term, Chirnside Park should be given the opportunity. It is considered that a condition of such an opportunity being offered to Chirnside Park would be the inclusion of a significant component of commercial (including offices) and community services which have been identified as lacking in the northern part of the Region. It may be that one centre does not necessarily have to develop at the expen"se of the other - the metropoli tan area at present has "pairs" of major centres, a similar distance apart, which appear to be operating successfully in tandem as District Centre "systems". These consist of a traditional town centre with retail, commercial and community facilities, and a nearby modern, freestanding and enclosed shopping centre. Some examples are Box Hill and Doncaster, Preston and Northland, Oakleigh and Chadstone, and Moonee Ponds and Highpoint. The consultants also believe that a major weekly shopping facility should be established in the Shire of Sherbrooke, and regard Upper Ferntree Gully as the most suitable location for such a facility. · Accommodation of adequate office, commercial and peripheral retail services, and en hancement of the Region'b commercial centres generally; would appear to be logical outcomes of a Regional Strategy based on agreed objectives and targets, a performance based ·implementation mechanism, and co-operative roles for the Authority and Munici palities. In the formulation and implementation of a new strategy such as described, the Authority would become much more a facilitator and initiator, in contrast to its presently perceived and restricted role of a purely regulatory body. The Authority could make a significant ·contribution to the process of clarifying roles and objectives for the Region's centres, become actively involved with the Municipalities in achievement of these objectives (by helping with promotion, facilitating of community participation, and assist ing the process. of assembling suitable parcels of land for development) and make approaches to government for its support in the development of a major retail, commer cial and community activity centre for the UYV&DR Region. 8.5 REFERENCES • George J.Connor and Associates ( 1979) Retail and Commercial Centres Study - (report prepared for the Upper Yarra Valley and Dandenong Ranges Authority). • Urban Spatial and Economic Consultants Pty Ltd (USE), in conjunction with Econsult (Australia) Pty Ltd (1988) Upper Yarra Valley and Dandenong Ranges Region - Retail and Commercial Centres Study 1988 - (report prepared for the Upper Yarra Valley and Dandenong Ranges Authority). 66 RETAIL AND COMMERCIAL CENTRES - POLICY OPTIONS Policy options for planning and development of the Region's retail and commercial centres can be divided into four categories - regional controls, strategic approach to retail growth, development of a major regional activity centre, and provision of a new weekly shopping opportunity in Sherbrooke. REGIONAL CONTROLS Two options are identified. (1) Retain existing policies. (2) Replace existing controls with statement of objectives, growth targets and perfor mance measures for centres considered as having regional significance. The first option perpetuates a control system which has not performed to expectations. Preparation of Overall Plans of Development is not progressing satisfactorily, and the predominant floorspace and hierarchical controls are regarded as ends in themselves, rather than means of achieving a centre's objectives. The second option has been developed because the present controls are seen as inappropriate and too regulatory for the accommodation of modern trends in retailing and commercial centre development. An "objective and performance" based system of con trols would be designed to recognise special qualities and environmental constraints of particular centres, and to meet the needs of users in the localities which these centres serve. Factors to be considered would include the following: · · · • Centres selected for regional controls would be those .having cross-municipal or cross-regional influences; high tourism appeal; environmental sensitivity; or: those needing protection from intrusive growth of centres outside t.he Region. • Other centres would have purely local significance, and their planning would be the responsibility of local municipalities. The only regional concerns with these centres would be in their choice of location and rezoning (if new centres), and with any departure from a local function (which would be reflected in their overall size). • A centre's objectives would include provision for commercial development which could incorporate office accommodation and provide more job opportunities in central locations, without necessarily competing for shopfront positions. This does not preclude the development of office parks outside commercial centres - which would be assessed on their merits. • Peripheral retail activities could be accommodated in one or two main locations in the Region, each having its own special statement of objectives and performance standards. STRATEGIC APPROACH TO RETAIL GROWTH Three options are identified for a target retention rate of total household expenditure on retail items within the Region. ( 1) Low Growth: Accept the current 56% retail expenditure retention rate. (2) Moderate Growth: Adopt a target 70% retail expenditure retention rate by 1995. 67 (3) Maximum Growth: Adopt a target 90% retail expenditure retention rate. The first option would accept the continuation of a significant undersupply of retail floorspace in the Region - particularly for large and small household goods, clothing, and (in the southern part of the Region) weekly shopping and groceries. Many residents would continue going elsewhere - some travelling long distances - for an adequate range of comparison goods and weekly shopping items. The second option would address the current undersupply of retail floorspace in the Region. A 70% expenditure retention rate appears to be a reasonable target to aim for initially. This target could be reviewed from time to time, and changed if warranted because of social and economic circumstances. The third option appears unrealistic· at present. Once established, shopping habits take time to change, and other major centres outside the Region will continue to attract a significant percentage of shoppers from the UYV&DR Region in the foreseeable future. DEVELOPMENT OF A MAJOR REGIONAL ACTIV!TY CENTRE Three options are identified. (1) Retain existing policies. (2) Designate the Lilydale Town Centre as the major regional retail, commercial and community centre. (3) Designate Chirnside Park as the major regional retail, commercial and community centre. The· first option would retain Chirnside Park's status as the Region's largest retail centre and Lilydale's role would be limited to the Region's second largest centre. This option would not be consistent with current government policies for the location and functioning of major regional activity centres in metropolitan Melbourne, which are reflected in the choice of traditional town centres - rather than modern freestanding, enclosed and predominantly retail centres - as metropolitan 'District Centres'. The second option recognises a number of attributes which Lilydale already possesses: • it is centrally located in the popuiation catchment of the northern part of the Region; • it is easily accessible by both road and public transport; • it is an historic commercial and community focus for residents of the Shires of Lillydale, Hea!esville and Upper Yarra; • the population of its regional catchment has reached a level whereby it could support considerably more retail, community, recreation and entertainment facilities; and • its selection as a major centre would be in keeping with State Government policies for development of major regional activity centres, based on traditional town cen tres. A logical and long-term outcome of a major development of the Lilydale Town Centre could be its elevation to become one of metropolitan Melbourne's 'District Centres', attracting positive government support for its further development. This option would not preciude expansion of Chirnside Park which might complement the services offered by the development of Lilydale. 68 The third option would elevate Chirnside Park to a "de facto" metropolitan 'District Centre', building on its predominantly retail function, despite a current lack of commercial and community services. PROVISION OF ADDITIONAL WEEKLY SHOPPING OPPORTUNITY IN SHERBROOKE Three options are identified. (1) Retain existing policies. (2) Provide for development of a major weekly shopping facility in Upper Ferntree Gully. (3) Consider provision of a major weekly shopping facility in Belgrave or Upwey. The first option would perpetuate the present situation of a limited choice in weekly shopping opportunities in Sherbrooke, which causes regular extra travelling to other centres outside the Region for a large number of the Shire's residents. It would also fail to address the problem of a high percentage of escape retail expenditure at present being lost from the Shire. The location of a new weekly shopping facility in Upper Ferntree Gully - as identified in the second option - would provide a much needed alternative within the Region. Upper Ferntree Gully has advantages over other locations because of its main road position in the western part of the Shire, the availability of a single large site, and the fact that a significant expansion of the centre is currently being exhibited. In considering the third option, although Belgrave and Upwey are each located close to the Sherbrooke Shire's main concentrations of population, they have limited opportunities for expansion because of physical constraints and the proximity of nearby residential areas. Also, any major extensions to Belgrave's retail services would add more traffic to the centre's already congested roads, and might prejudice its growing function as a major tourism and service centre for the southern part of the Region: ,• 69 9.0 MANUFACTURING, EXTRACTIVE INDUSTRY AND MINING 9.1 INTRODUCTION The Region has a small but well established industrial base consisting of manufacturing, processing, service and extractive industries. In 1984-85 (the last manufacturing Census) the total number of manufacturing establishments in the Region was 200 (Wilson Sayer Core, 1989). Table 13 below shows distribution of establishments in the four Shires and the number of employees for the year 1984/1985. Between 1975 and 1984-85 the number of manufacturing establishments increased by 52, which amounts to a growth of 35%. Most of the growth occurred in the Shire of Lillydale with 34 establishments or 65% of the total growth. Over the same period of time the employment grew only by 38 positio11s. Extractive industry has remained relatively stable over the last decade. In addition to seven quarries in existence 7 years ago (Upper Yarra Valley and Dandenong Ranges Authority, 1982) there has been one additional commercial quarry established in the Shire of Upper Yarra. The mining situation has not changed in the last decade. Apart from one small gold mine at Hoddles Creek, there are no other mines operating in the Region. Exploration activity, however has increased considerably during the past 7 years. TABLE 13: MANUFACTURING ESTABLISHMENTS 1984-85 No of Employment (a) Establishments Male Female ? Total ? PPE ( b) ? Healesville 31 256 85 341 11 Lillydale 104 1. 737 973 2,710 26 Sherbrooke 36 162 85 247 7 Upper Yarra 29 232 112 344 12 TOTAL 200 2,387 1,255 3,642 18 Melbourne Stat Division 9,725 207,241 91 ,595 298,836 31 Victoria 12,224 256,051 108,369 364,420 30 Source: ABS Census of Manufacturing, 1985 (Catalogue No. 8203.02) Notes: (a) Employment data represents an average av.er the whole year, but for single establishment enterprises with less than four pe_rsons employed, data relates to employment at 30th June 1985. (b) Persons per establishment. 71 9.2 EXISTING SITUATION 9.2.1 MANUFACTURING Most of the manufacturing industry in the Region is located in the Shire of Lillydale. Tables 14 and 15 below, show the share of industrial establishment and manufacturing activity in the Region's four Shires. In the Shire of Lillydale most industrial activity is concentrated in three localities, namely Kilsyth, Lilydale and Chirnside Park, where almost all industrial establishments are located in the areas zoned for industrial purposes. The Shire of Lillydale also has the largest amount of vacant industrial land as shown in Table 15. Most of this land, however is committed for development in the short or medium term. TABLE 14 SHARE OF INDUSTRIAL ESTABLISHMENTS WITHIN THE REGION (1988) Shire % of Total Industry within the Region Li 11 yda 1 e 60 Sherbrooke 4 Upper Yarra 22 Heal esvi 11 e 14 Source: U.Y.V. & D.R.A. Inventory of Industrial Establishments in the Region, (1988) - ... The Shire of Sherbrooke is characterised by an absence of industrial zones, and most establishments are located in Commercial zones or Restricted Use Zones which are created for a specific use. These establishments employ, on average, a significantly smaller number of people than the rest of the Region (Table 13). TABLE 15 VACANT INDUSTRIAL LAND (1988) Area of Area of .Percent of Industrial Industrial Industrial Zoned Land Zoned Land Zoned Land Vacant Vacant Shire (HA) (HA) Lillydale 528.0 89.97 17 Upper Yarra 1 .96 0.08 4 Hea 1 esv i 1 1e 15.0 3.00 20 TOTAL 544.96 93.05 17 Source: U.Y.V. & D.R.A. Inventory of Industrial Establishments in the Region (1988). The Shire of Healesville has its only industrial estate located on the edge of the township with an area of some 15ha, of which 3 ha are still vacant. Most of the vacant land however, is subject to flooding and generally of poor quality. The Shire of Healesville is attempting to rectify some of the problems in the estate. Apart from the establishments 72 located in the above estate a number of other industrial activities in the Shire are located in rural areas (mainly saw mills) and in Commercial Zones. The Shire of Upper Yarra has only one small Industrial Zone located at Woori Yallock, about 1.96 ha in size, most of which is developed (Table 15). The rest of the establish ments are located in Rural Zones (mainly saw mills) and in the Township Zone. The main manufacturing activities in the Region are in wood and metal products. Other activities represented include food and beverages, printing and publishing, electric and electronic products, chemical products, transport equipment and clothing and footwear (Table 16). TABLE 16 MANUFACTURING ACTIVITY WITHIN THE REGION (1988) % of industry within the Region Activity Upper Li 11 ydale Sherbrooke Yarra Healesville Food/Beverages 1 3 Clothing/Footware 2 1 Wood/Wood Products/ 13 15 8 Furniture Printing/Publishing 3 2 Chemical Products 3 Metal Products 14 2 2 2 Transport Equipment 3 Electrical/Electronic 6 Products Other 15 2 2 Source: UYV & ORA Inventory of Industrial Establishments in the Region ( 1988) The form and nature of establishments vary considerably, ranging from scattered individ ual establishments in residential or rurai areas to industrial estates that have grown along the main roads (ie. Kilsyth) and near the main population centres (ie. Lilydale and Healesville). With the exception of the Chirnside Park Garden Industrial estate, most other establishments have developed in a haphazard manner with very little consider ation to design, siting and landscaping. Many recent developments have, however, been of a relatively high quality in terms of design and landscaping. 9.2.2 EXTRACTIVE INDUSTRY, SOIL REMOVAL AND MINING These activities have remained relatively stable over the past few years. With the exception of a quarry known as Warradoo Quarry near Launching Place, which was opened in 1984, the situation has remained the same as in 1982, with 6 quarries in operation. Soil removal as a commercial activity has been practiced widely in the past in various parts of the Region, mainly in the red and mountain soil areas. The Regional Strategy Plan (Upper Yarra Valley and Dandenong Ranges Authority 1982) prohibits commercial soil removal, except where in association with an approved development such as construction of a building or dam and then only if the soil cannot be utilised on site. Although this policy has been in force since 1982, cases of illegal soil removal have been reported and commercial soil removal has continued. 73 Mining as an activity has not changed since 1982. With the exception of a Hoddles Creek Gold Mine which apparently has not operated for some time, there are no other mines in the Region. There is, however, much exploratory activity in the Region, particu larly for gold. 9.3 ISSUES The major issues concerning industry in the Region are the scale, nature and location of further development and the potential social and environmental impact. Manufacturing and extractive industries are an important component of the Region's economic base. The importance of manufacturing industry in particular has increased in recent years despite the fact that the Region is riot recognized at the State level as a preferred area for industrial location. Its further expansion is I imited by the lack of appropriately zoned land in the Shires of Healesville and Upper Yarra and by envi ronmental and social constraints in the Shire of Sherbrooke. In the Shire of Lillydale, where most of the industry and vacant industrial land are located, further significant expansion is limited by the lack of appropriately zoned land. Even in the existing estates, most of the vacant land is committed either for the expansion of the existing establishments or for new developments. Any further expansion of the manufacturing base in the Region would require rezoning of land, which would most likely involve rural land, as most of the land zoned for urban purposes is committed for residential and other various uses. The social impacts to be considered in any further expansion of manufacturing industries include employment,· effect on the environment, costs for provision and upgrading of transport and reticulated service infrastructure, and effect on other activities such as farming, recreation and tourism. Employment opportunities in the Region are quite limited, and a majority of the workforce has to commute to work outside the Region. This is particularly pronounced in the Shires of Lillydale and Sherbrooke where only 26.1 % and 22.0% of the workforce respectively are employed in the Region (USE & Econsult, 1988). In the Shires of Healesville and Upper Yarra the figures are 46.5% and 47.5% respectively, however, those employed outside the Region generally have to travel greater distances than those from of the Shires of Lillydale and Sherbrooke. · Although manufacturing industries are not usually high employment generators when compared with tourism, retail, commercial and some agricultural activities, they do nevertheless provide valuable employment opportunities for local people. Traditionally, manufacturing industries have been regarded as a non-desirable activity in the Region. This perception, however, is gradually changing for many industries, which through the use of high technology, sensitive designs and siting have acquired a level of pub I ic acceptance. It is important therefore that any new industries to be attracted tci the Region exhibit a high level of community acceptance, achieve compatibility with the environment and maintenance of amenity. Depending on the scale, location and nature of the potential industrial activity, a significant public cost could be incurred for the provision or upgrading of transport and reticulated service infrastructure. These matters must be addressed thoroughly prioi to any significant expansion of the Region's manufacturing base. 74 A further issue that must be addressed concerns alienation of rural land and compatibil ity with primary production, recreation and tourism. As the Region is rapidly developing as an important tourist destination, it is vital to ensure that all new developments are compatible with this role. Environmental issues to be considered include the potential effects of industry establish ment on the Region's landscape, flora and fauna and water quality. The Region is recognised as an area of high environmental significance because of the presence of varied and spectacular landscapes and numerous sites of botanical and zoological significance. The protection and conservation of these significant features requires careful planning and development. Water production is an important activity in the Region, which supplies 70% of metropolitan Melbourne's water requirements. Some of this water is collected from the catchments used for rural and urban purposes, and it is therefore important that any industrial waste generation and emission be addressed and managed in a manner compatible with maintenance of high water quality. 9.4 PLANNING IMPLICATIONS. The major task for planning in relation to manufacturing and extractive industry and mining is to achieve a balance between the community needs for employment and economic wellbeing and the need to protect environmental values and resident amenity. · Any provision of additional industrial development must take into account the effects on other economic activities such as farming, recreation and tourism as well as potential community costs for provision of necessary infrastructure services and effects on the environment. The choice of appropriate industries, their scale and location will be of utmost impor tance if their development is to meet the community's needs and aspirations. In- addition to appropriate choice of location it will be essential to develop clear performance standards in order to protect the environmental values and amenity of the Region. · 9.5 REFERENCES: • Urban Spatial and Economic Consultants- Pty. Ltd. (USE) and Econsult, Australia Pty. Ltd. (1988) Upper Yarra Valley and Dandenong Ranges Region Retail and Commercial Cen- tres Study 1988 ~ • Upper Yarra Valley & Dandenong Ranges Authority (UYVDRA), 1982, a Regional Strategy Plan. • Upper Yarra Valley & Dandenong Ranges Authority (UYVDRA), 1982, b Investigations Report. • Wilson Sayer Core, Pty. Ltd. ( 1989) Upper Yarra Valley and Dandenong Ranges Industrial Study 75 MANUFACTURING, EXTRACTIVE INDUSTRY AND MINING POLICY OPTIONS Three policy options for planning of manufacturing industries are identified. It is not considered necessary to generate policy options for extractive industry and mining. The existing policies, which require creation of Restricted Use Zones, are considered appro priate planning mechanisms for operations and development of extractive industry and mining. OPTION 1: RETAIN EXISTING POLICIES OPTION 2: MORE EFFICIENT USE OF EXISTING LAND Under this option there would be no further rezoning of land for industrial purposes. The current planning provisions would be changed to allow for greater density development, restructuring of the partly developed allotments and resubdivisions into smaller allot ments. OPTION 3: SMALL TO MEDIUM EXPANSION This policy option would allow for a reasonable expansion of manufacturing industries through provision of some additional land, with the ability for further expansion if and when needed, through specific rezonings. The initial requirement would be for about 40 ha. in the Shire of Lillydale and 10-15 ha. each, in the Shires of Healesville and Upper Yarra. This option would most likely involve rezoning of rural land. This could be achieved in two ways. (i) Up-front rezoning of parcels of land for a range of industrial uses, which would depend on traditional planning scheme provisions to control the development and/or (ii) Rezoning for a specific use or proposal, which would require creation of Restricted Use Zones incorporating detailed performance standards. This mechanism would provide a greater ability to control the nature of the development, its siting and design, and it should only be used for major industrial developments. These options are based on a premise that any new industries to be located in the Region would be in harmony with the Region's environment and maintenance of amenity. The ability to dispose of wastes without endangering water and air quality should be of paramount importance. Option 1 would not provide for any further industrial land. Some of the negative effects of this option would be the restriction of employment opportunities and economic growth, as well as the possible illegal establishment of industrial enterprises in inappropriate areas. On the other hand, some people would consider that this option would provide better prospects for maintenance of environmental and landscape values, water quality and general amenity. Option 2 would provide some development expansion and hence employment opportu nities in the areas already zoned for industrial purposes. These areas are almost entirely confined to the Shire of Lillydale. This option would not provide any opportunities for establishment of further industries, and hence employment opportunities, in the rest of the Region. This option, however, could be regarded as desirable for maintenance of environmental values and amenity. 76 Option 3 would be most desirable from the economic point of view as it would provide for further industrial expansion and creation of employment opportunities. This option, however, could have undesirable environmental and amenity effects unless the industrial expansion is strictly controlled. 77 10.0 TRANSPORT ISSUES RELATING TO FUTURE DEVELOP MENT IN THE REGION 10.1 INTRODUCTION The purpose of this chapter of the report is to examine future needs for public transport services and main road capacity in the Region. The examination focuses mainly on the northern part of the Region where most of the remaining undeveloped residential land exists, and where certain areas are being investigated to ascertain whether any addi tional urban zonings might be considered. 10.2 EXISTING TRANSPORT PROVISIONS 10.2.1 PUBLIC TRANSPORT SERVICES Public transport plays an essential role in meeting accessibility needs for significant numbers of people. This is particularly so in the UYV&DR Region, which is characterised by two main population concentrations (Lilydale I Mooroolbark and Upper Ferntree Gully /Upwey/ Belgrave) and many small townships scattered over a very large hinterland. The Region's public transport system consists of regular train services between Melbourne and each of these main populated areas (terminating at Lilydale and Belgrave), aug ., mented by a network of bus services mainly radiating out from railway stations and traversing the main connecting highways and roads to the smaller townships. The only non-conventional service is a demand/response "Telebus" operating in the Lilydale I Chirnside Park area, which takes a set route during peak hours, and is available within a defined area at other times in response to telephone requests. All bus services are operated by private bus companies, which charge Neighbourhood fares under a subsidy agreement with the Metropolitan Transit Authority. An exception is the service through Lilydale to Warburton which has a dual fare system, as the section east of Launching Place is outside the M.T.A.'s area of subsidy. (A traveller from Warburton to Lilydale, for example, has to buy two tickets, costing $2.00 to Launching Place and $0.85 for a Ringwood Neighbourhood ticket for the rest of the journey). Existing Urban Policy Areas extend approximately 1.5 km from bus stops at Healesville and Yarra Glen, and generally as far as 1 km from bus routes along the Warburton Highway and through Lilydale, Mooroolbark, Mt. Evelyn, Coldstream and Wonga Park. Areas being investigated for possible urban expansion adjacent to these Policy Areas extend to 2 and 3 km from the existing routes. Community service providers share a general perception of inadequate bus services in the Region. Most services do not operate at night or on Saturday afternoons, Sundays and public holidays. The most disadvantaged groups are families without a second car, teenagers, and aged and disabled people - especially those who live beyond walking distance from the main arterial roads where most buses run. 10.2.2 . CAPACITIES OF MAJOR ROADS As population continues to grow within the Region, and as most people prefer or are obliged to use private transport, traffic volumes are approaching or exceeding desirable ... maximum levels for the present capacity of a number of important roads not yet scheduled for widening. The most congested times are morning and evening commuter peak periods, however, seasonal weekend and tourist traffic also places further demands 79 on many of the Region's major arterial roads. Any extensions to urban zonings which may be considered as a result of the current investigations would cause additional increases in traffic volumes and so add to arguments for extra capacity on some roads, particularly in the Shires of Lillydale and Upper Yarra. Recent studies by road transport authorities have identified traffic problems and pro grammed improvements for Melbourne's road network. Some of these works are situated within the Region and are at present under construction or planned for commencement during the next few years. These include: .. Upgrading 2··1ane sections of Canterbury Road (from Dorset to Mt Dandenong Roads), and Mt Dandenong Road (from Main Street, Croydon to Durham Road) to 4-lane capacity; • A local by-pass of Lilydale, south of the Maroondah Highway along Melba Avenue and Anderson Streets; and • A 2-lane re-alignment of part of the Melba Highway, by-passing Yarra Glen and eliminating a number of right-angle bends. 10.3 ISSUES FOR TRANSPORT PLANNING 10.3.1 PUBLIC TRANSPORT POSSIBILITIES The State Government's Metplan Strategy (1988) for public transport in metropolitan Melbourne identifies expansion of modal (train/bus/car) interchanges at Lilydale and Upper Ferntree Gully, and the development of a new railway station, with substantial car parking, between Lilydale and Mooroolbark. The Strategy, however, does not address perceived deficiencies in the Region's bus services, and funding for any substantial improvements to these services may be difficult to justify because of the Region's scattered population - especially when compared with some of Melbourne's other outly ing areas with higher urban densities and more potential for urban expansion. Some of the areas being investigated for possible urban rezoning within the Region extend to 2 and 3 km from existing bus services. The question arises as to whether public transport could be provided in those areas which may be (for other reasons) favoured for urban use, and at whose cost. This becomes an important consideration in deciding which, if any, areas should be opened .up for residential development, and in planning desirable densities and overall road patterns for such developments. Criteria which the Metropolitan Transit Authority uses in considering the provision of new bus services include population and densities, direct routes linking main centres, and maxi mum levels of service subsidy. Some further initiatives towards general prov1s1on and improvement of public transport services in the Region could be explored, including: • an examination of whether the Telebus system could operate effectively in other urban and rural areas (with whatever modifications as might be appropriate); • a taxi transit system such as that available on the Mornington Peninsula's bus routes between 8 p.m. and midnight, where passengers with a Met ticket can be taken by taxi to their destinations at no extra cost; • Council-run bus services, subsidised by government, offering flexibility and choice for municipal residents; and • extension of The Met's Neighbourhood fare system to cover the whole Region including all of the main Warburton Highway townships. 80 The MTA is encouraging more specific consideration of public transport needs in the preparation of Overall Development Plans (ODPs) for new urban areas. A report prepared for the MT A by Pak-Poy & Kneebone ( 1988) recommends that an MT A officer be part of the planning team preparing an ODP, or alternatively, that draft ODPs be referred to the MTA for its approval. The MT A is also encouraging community participation in the establishment of principles for guiding transport development in new areas, and is at present considering the acceptance of a statement of such· principles arising from a series of public meetings in the Plenty Valley - which has been declared one of Melbourne's future growth corridors. 10.3.2 MAJOR ROADS Strategies for major road construction are guided by government policy for funding urban arterial roads during the next 1O years. An important component of this pol icy is the upgrading to 4-lane status of any 2-lane roads in developing areas with Average Weekday Traffic greater than 15,000 vehicles. Traffic volumes are approaching or ex ceeding 15,000 vehicles per day on some important roads within the Region which are not yet scheduled for widening. These roads are as follows: • Warburton Highway. Population in the Shire of Upper Yarra is expected to peak at 21,400 (based on existing zonings) during the mid-1990's - an increase of 58% on 1986 figures. If this percentage increase was applied to 1986 daily traffic volumes between Wandin North and Woori Yallock (and beyond}, there would appear to be sufficient justification for upgrading existing 2 and 3 lane sections of this part of the Highway to 4-lane status. Similar upgrading between Wandin North and the Maroon .. f dah Highway would depend on the percentage of Warburton Highway traffic (coming from east of Wandin North) which preferred to use the Clegg Road route to Canterbury Road. • Clegg, Monbulk, York and Swansea Roads. The Clegg/Monbulk/York Roads route is an important connector from the Warburton Highway and Mt Evelyn to Canterbury Road, while Swansea Road is a direct extension of Canterbury Road to the Maroon dah Highway (at Lilydale). Clegg Road is badly congested in peak hours - particu larly at its intersections with the Warbur.ton Highway at Wandin North and with Monbulk Road at Mt Evelyn. York and Monbulk Roads are mostly 2 lanes wide, with 1986 daily traffic volumes exceeding 15,000 vehicles per day. Swansea Road's 1986 daily traffic volumes of 11,000 - 12,000 vehicles should increase significantly in the 1990's with the the expected growth of population in the Lilydale area and beyond. • Maroondah Highway at Coldstream. 1986 daily traffic volumes of 9,000 - 11,000 vehicles are expected to increase relative to a projected 58% population increase in the Shire of Healesville (from 10,700 in 1986 to 17,000 in 1996). These expected increases in traffic volumes do not take into account other factors such as changing lifestyles and family circumstances which could affect the number of vehicles per family, and "fine weekend" and snow season traffic which can sometimes generate higher volumes (on the Maroondah, Melba and Warburton Highways) than during weekday peak periods. Any significant widenings and other improvements to major roads can impact on the Region's natural and environmental qualities. The Regional Strategy Plan maintains a policy of minimising the environmental impact of such works on scenic routes, on flora and fauna resources, and on the amenity of local communities. It is important that planning and detailed design of these works is carried out in a way that will at least maintain, if not enhance, the landscapes and environmental systems through which they pass. 8.1 10.4 POLICY IMPLICATIONS The suggested improvements to both public transport services and road capacities in the Region, which have been explored in this part of the Re-investigation Report, are in keeping with the Regional Strategy Plan's policies for transport (Chapter 7). These policies include provisions for co-ordination of transport planning and services with road and public transport authorities, to: · • minimise adverse effects of construction and other works on the Region's landscape and environment; and · • maintain and improve existing public transport services in the Region, and encour age demand/response schemes (such as Telebus) to serve Urban Policy Areas. 10.5 REFERENCES • Ministry of Transport ( 1987) Metropolitan Arterial Road Access Study. • Ministry of Transport ( 1987) Metropolitan National Roads Study. • Ministry of Transport (1988) Metplan - Metropolitan Public Transport Industry Plan. • Pak-Poy & Kneebone ( 1988) Planning Urban Subdivisions for Bus Operations - report prepared for the Metro politan Transit Authority. • Road Construction Authority ( 1987) Outer Eastern Metropolitan Area Traffic Study. • Upper Yarra Valley and Dandenong Ranges Authority (1989) Transport Issues Relating to Residential Development in the Region. 82 ...------,----...,..,------ TRANSPORT ISSUES - POLICY OPTIONS There are no policy options proposed. It is considered that on-going improvements to public transport services and road capacities can be carried out within existing Regional Strategy Plan policies. Nevertheless it is important that the already established co operative processes between the Authority, Municipalities and transport agencies are continued and extended. Authority support should be given to consultation with these bodies with a view to: • inviting bus route planning input from the Metropolitan Transit Authority into the preparation of overall structure plans; • examining Telebus and other service initiatives, to ascertain how public transport opportunities in the Region's urban and rural areas might be improved; and • extending The Met's Neighbourhood Fare System, to cover all bus routes serving the Region's settled areas. 83 11.0 RECREATION AND TOURISM 11.1 EXISTING SITUATION Special qualities of the Region have long attracted visitors to the area. Even before the 1880s, the Lilydale district was famous in Melbourne for its beautiful scenery and the Yering vineyards were a fashionable recreation spot for those who could afford to visit them. The Region became extremely popular to visit for thousands of Melbourne people with the opening of the railways, firstly to Lilydale in 1881, and then eventually to Warburton and Gembrook in the early 1900's. The Dandenongs and Warburton districts became the two most popular holiday locations in Victoria. In the Warburton area alone 21 guest houses were established. The demise of the guest house era came with the advent of the motor car in the late 1920's. The Region then became a popular area for day-visitors. Successive State Governments have recognised the conservation and recreation value of the Region's natural resources. The first official National Parks to be reserved near Melbourne were Ferntree Gully and Kinglake in 1940, both located within the Region.' Approximately 73% of the Region's land is now held in public ownership. Within this area significant land has been set aside for parks and the diversity and quality of the area has· led to a wide choice of opportunities for outdoor pursuits. The Melbourne and Metropolitan Board of Works' Reservoir Parks, which have been popular for decades, offer a 'developed' setting and include areas such as Maroondah and Silvan reservoirs. 'Natural' areas are generally found at parks managed by the Department of Conservation, Forests and Lands and include areas such as Olinda State Forest and Mt.Donna Buang. Although recreation facilities are provided, their design and layout tend to blend in with the natural environment. Both 'developed' and 'natural' major parks within the Region attract thousands of visitors annually. Visitation numbers of the M.M.B.W.'s parks within the Region have been relatively stable. At the same time there has been an increase in visitor use of Public land areas within the Dandenongs. Two million people visit this area per year with the · Dandenong Ranges National Park attracting close to 1 million people. Sherbrooke Forest followed by the former Ferntree Gully National Park, are the most popular destination points within the park. The main attractions of the park are bushland, tall forest, wildlife and scenery with the main activities being picnicking and walking. Two of Victoria's three major tourist attractions are located within the Region. These are Healesville Sanctuary and Puffing Billy Tourist Railway. In addition, a significant new recreational/tourist activity is beginning to emerge with the interest in Yarra Valley wine. The area planted to grape vines is increasing and the reputation of cool-climate wines is spreading. Tasting of the products at vineyards is generating an interest in the wines and this activity is growing at a rapid rate. Along with this movement is a recognition of the potential for related eating and accommodation facilities. It should be noted there are signs that overnight accommodation may be re-emerging as an attraction in other select parts of the Region, particularly the Dandenongs. The diverse range of cultural attractions, the picturesque gardens, the contrasting urban rural landscapes and bushland settings of the Dandenongs, provide an ideal focus for international and interstate visitors who visit Victoria. Three major tourist companies operate commercial tours to the Dandenongs. Many features of the Dandenongs are major 85 tourist attractions in their own right while others are complementary to other features. Major tourist roads are the Mount Dandenong Tourist Road and Monbulk Road. Since the approval of the Regional Strategy Plan ( 1982) there has been Government commitment to increasing and enhancing open space along with the maintenance of existing recreation areas for future generations. The importance of linear trail networks is also being recognized. Important new parks, features and linear trails created by the Government since 1982 include:- - Lysterfield Lake Park - This 1160 ha. park mainly provides for water based recreation (non-motorised) but also has facilities for picnicking, horse riding, cycling and orientering. ~'.Danderiong Ranges National Park - Created from amalgamation and linkage of several, previously separate, smaller parks. It provides opportunities for picnick ing, walking and observing wildlife in tall forest and bushland environments. - Lilydale - Warburton Railway Reserve - A major initiative of the Authority; this 38km non-vehicular route for cycling, w\'}lking and horse riding links the town ships and forests of the Upper Yarra Valley with the metropolitan open space linear network. It is currently being implemented by Department of Conservation Forests and Lands. - Alpine Walking Track - A link track from Warburton joins the main 400 km Alpine Walking Track, which crosses Victoria's highest mountains, through State Forests and National Parks, and on into N.S.W. The Lilydale-Warburton Railway Reserve joins this track at War burton and will eventually extend this lin ear trail to Lilydale. - Extension to Warrandyte State Park An extra 13 km of river frontage has been added to the park. (This includes the transfer of the Mt. Lofty area (88 ha) from the M.M.B.W. to the Park). It is managed by Dept. of Conservation, Forests and Lands. - Upper Yarra River Management Strategy This important initiative of the Authority ( 1985) provides for the conservation, rehabilita tion and recreation use of Public land river frontages along the Upper Yarra River from Warrandyte State Park to Warburton. It is currently being implemented by Depart ment of Conservation Forests and Lands 86 - Gulf Station, Yarra Glen .A unique historical feature. One of the oldest farms in the Yarra Valley, with origi nal timber slab buildings dating from the 1850's. It is being managed by the Na tional Trust. A number of ·recent recreational trends need to be taken into account in the .planning, development and management of open space. There is evidence of greater interest in unstructured outdoor activities such as walking and cycling in 'natural' settings. Chang- . ing attitudes and preferences have been accompanied by growing environmental aware ness within the community and increased interest in indigenous landscapes, flora and fauna. Outdoor social activities such as picnics and barbecues have maintained their traditional appeal, particularly for family groups and organisations. As Melbourne contin ues to grow outwards it is expected that the number of Melbourne residents using major parks just beyond the metropolitan area will grow. A number of socio-demographic trends also have implications for open space and recreational planning. Increased life expectancy and lower birth rates mean there is now a much higher proportion of elderly residents in the population. Working-hours are more flexible and most members of the population now have more leisure time than ever before. Nevertheless some groups lack mobility because they do not own cars or are not well served by public transport. 11.2 ISSUES Given current recreation trends, the Region faces similar issues to those identified in the initial investigations of the Region in 1979-1980 (Upper Yarra Valley and Dandenong Ranges Authority, 1982) The natural assets of the Region, particularly the Dandenongs, have been placed under continuing pressure throughout the 1980's from recreation and tourism activities. It is highly unlikely that this demand will fall in the future, due to the~ Region's unique character, the proximity to Melbourne, the increasing popularity of nature-related activities and the very high public awareness of the. area. · Today, problems associated with the large numbers of visitors to the Dandenongs are a threat to the very features that attract people, and there is public concern about maintaining the area's environment. In particular, Sherbrooke Forest has been showing signs of environmental degradation from over-use for the last decade, and now there is a real loss of the forest's natural and scenic values. In response to this problem the Department of Conservation Forests and Lands prepared a Management Plan for the Dandenong Ranges National Park. Essentially the plan addresses the extreme imbalance in the distribution of visitors across the Dandenongs. First-time visitors to the area tend to gravitate to the former Ferntree Gully National Park and Sherbrooke Forest, because of established reputation, good signs and facilities. In addition, the impact of tourist traffic and development on the amenity of the local residents and the visual and environmental quality needs to be addressed. The Authority, in it's Regional Strategy Plan ( 1982), acknowledges the recreation pres sures associated with the· Dandenongs and the potential of other 'natural' areas of the Region, for example the Upper Yarra River. In broad terms the thrust of the policies is to re-direct recreation day-visitor use away from the Dandenongs to other select areas of the Region, such as Warburton and Healesville. Other policies aim at modifying the way development is undertaken while others specifically limit recreation/tourist development in the Dandenongs, based on the premise that more development induces demand. As a 87 means of achieving these policies an overriding general policy consideration is that planning for and promotion of recreation and tourism is to be co-ordinated at a regional level. These policies have generally failed in attempts to re-distribute day-visitors to other parts of the Region. Whilst it can be argued that the Regional Strategy Plan has assisted in maintaining the natural features of the area, it is considered that tourism and recreation in the Region, particularly in the Dandenongs, has not been well managed or co-ordinated. Economic and social conditions have changed since 1979-1980, there is greater recognition that tourism, properly channelled, will have a strong positive influence in the development of the Region. Major economic effects accrue to an area if people stay overnight. They spend money on ood, entertainment and accommodation and local residents are provided with employ ment. The tourist industry employs people with a wide range of expertise and qualifica ions and there are many benefits for the local community if jobs can be provided locally. ~The challenge is to ensure that such benefits can be provided with minimum disruption to the environment, to the amenity of the local area and to its community. The Region has many opportunities for development of recreation and tourism facilities, particularly within the Yarra Valley with the increasing interest in the wine industry. However there is a need to carefully plan and co-ordinate tourism and recreation to ensure that the environmental and landscape qualities, the Region's most important assets, are maintained. A positive approach to ensuring the continued interest in maintaining the environmental features of the Region is to integrate environmental objectives with economic and social concerns. For example, if the tourism industry is developed with themes compatible with the environmental objectives, jobs for local people will be created and the industry itself will be demanding a high degree of amen_ity because the way the region is presented will ultimately determine the success of each enterprise. The Authority has been examining the tourism industry as it affects the Region and the policies of the Regional Strategy Plan. The results of these investigations are being explored with representatives of the industry with a view to developing options for the future. ·Initial results indicate that there are two major tourism segments in the Region which flow beyond the boundaries of the official Region. They can be described as the Upper Yarra Valley and the Dandenong Ranges. Within these areas five tourism planning units have been identified which will form the basis of a marketing strategy. (Upper Yarra Valley and Dandenong Ranges Authority, May 1988). 11.3 POLICY IMPLICATIONS The Dandenong Ranges is an extremely popular recreation and tourist area, especially for overseas tourists. Planning measures should maintain and protect the quality of this area. In order to cope with the existing and continual demand for recreation there is a need to co-ordinate the provision of recreation and tourist development. It is important to manage, maintain and improve, where necessary, existing recreational areas and tourist facilities. ~. Provision for additional facilities should be undertaken in a manner which has regard to any adverse environmental effects and the amenity of local residents. Existing Recreation policies encourage the provision of a wide range. of recreation activities on Urban, Non-Urban and Public Land compatible with other regional objectives. It is therefore recommended that these recreation policies be retained. 88 Tourism does and will continue to have a strong influence in the development of the Region. It is considered that the current Regional Strategy Plan policy re-directing day-visitors away from the Dandenongs should be maintained. At the same time it is considered important that the Authority encourage tourists to the area to stay at least one night or longer so that the economic benefits of tourism are optimised within the Region. Therefore it may be appropriate to modify detailed policies of the Regional Strategy Plan to capitalize on new tourism opportunities as they arise. In particular there is need tol, encourage quality accommodation facilities to specific areas within the Region as iden-j tified in the Draft Tourism Strategy. · A Major Tourist Development under the current policy may only be developed within Urban and specified Non Urban Policy Areas and is currently prohibited within the Landscape Living Policy Area of. the Dandenong Ranges. Under this policy and the existing 'Major Tourist Development' definition a combination of a restaurant and accom modation facility, although it may be small in nature, is prohibited in the Dandenong Ranges. As a consequence, developments of this nature which have been identified as desirable for the Dandenongs in the Draft Tourism Strategy are precluded from the area. The benefits derived from the tourist dollar, as opposed to the day-visitor, are therefore not realized. In light of current circumstances, there needs to be further definition, clarification and change in emphasis to the current policy, particularly Major Tourist Development in the Dandenong Ranges. Similar to planning controls in other Non-urban Policy Areas a 'Restricted Use Zone, Major Tourist Development' technique may be used to ensure that appropriate develop ment is at least considered. In this way, the Authority and the Responsible Authority can ensure that the development is compatible with environmental objectives for the area and public concerns are taken into account, whilst attempting to optimize the tourism benefits to the area. · Of major importance is the need to recognize the economic and social concerns of the Region and to integrate them with environmental objectives. There is a need for a unified and co:..ordinated approach in the planning for and promotion of recreation and tourism. There is clear evidence that a single body should be responsible for tourism promotion in the Region rather than· ·the adhoc arrangements which currently exist. Coupled with this approach the Authority should have an active role in integrating commercial tourism with the relevant Public land agencies to ensure that recreation and tourism planning is co-ordinated at a regional level. 11.4 REFERENCES • Department of Gonservation Forests and Lands 1987. Dandenong Ranges National Park Proposed Management Plan. December 1987 • Department of Conservation, Forests and Lands, Melbourne Region and National Parks and Wildlife Division 1988. Warrandyte State Park Draft Management Plan, August 1988 • Department of Conservation Forests and Lands and Upper Yarra Valley and Dan denong Ranges Authority. 1988. Lilydale - Warburton Railway Reserve Recreation Management Plan. July 1988 Howarth and Howarth Services Pty. ( 1987) Tourism Marketing and Development Study, October 1987, for the Upper Yarra Valley and Dandenong Ranges_Region. 89 • Ministry for Planning and Environment (MPE) 1988 'Melbourne's Open Space' The Metropolitan Open Space Plan, August 1988 Victoria - Protecting Our Environment A State Conservation Strategy Initiative. Government Printer. • Tansley, M (1978) The Conservation of Sites and Structures of Historial and Ar chaeological Significance in the Upper Yarra Valley and Dandenong Ranges Region November 1978. (II Upper Yarra Valley and Dandenong Ranges Authority (UYVDRA) 1982,a. Regional Strategy Plan. October 1982 • Upper Yarra Valley and Dandenong Ranges Authority (UYVDRA) 1982,b. Investigations Report. October 1982 • Upper Yarra Valley and Dandenong Ranges Authority (UYVDRA) 1985. Upper Yarra River Management Strategy, February 1985 . • Upper Yarra Valley and Dandenong Ranges Authority (UYVDRA) 1988. Draft Tourism Strategy for the Upper Yarra Valley and Dandenong Ranges, May 1988 . 90 RECREATION AND TOURISM - POLICY OPTIONS Two options are identified. 1. Retain existing Recreation and Tourism Policies 2. Retain existing recreation polices but modify tourism policies in light of social and economic circumstances and problems associated with day-visitor use in the Dan denongs. Modifications include the following. • Clarify and strengthen the Authority's role in tourism development and planning in the Region to ensure that tourism is integrated with other land use and environmental planning considerations. The Authority should initiate and pre pare guidelines for tourism development which broadly cover the tourism capacity of designated tourism areas of the Region (as defined in the Draft Tourism Strategy- U.Y.V.D.R.A., 1988). The guidelines should aid future plan ning assessment of the potential number, size and type of tourism develop ments and the likely impact these may have, not only on each specific site, but on the surrounding area and its community. • Clarify the co-ordination of planning for tourism in the Region. There is a need for a single body to be responsible for the marketing of the Region and to ensure that the Draft Tourism Strategy (U.Y.V.D.R.A., 1988) is implemented. This body should consult with the Authority to ensure consistency with Regional policies. • Stengthen planning policies which direct tourism development to the most appropriate areas in the Region and· away from areas which are overloaded with visitors. · There is clear evidence that a need exists for an integrated approach to the planning of recreation and tourism. The types of poli~ies proposed are inter-related in an attempt to relieve the pressures on the Dandenongs as well as promote other designated areas of the Region for tourism development and day-visitor use. In this way the socio-economic benefits of tourism can be maximized within the constraints of environmental objectives for the Region. Option 1 proposes to maintain existing policies for both recreation and tourism. However the implementation of these policies has not achieved some of the desired objectives, such as promotion of Healesville and Warburton as principal tourist destinations in the Region and encouragment of day visitors away from the Dandenongs to these areas. Option 2, which proposes greater emphasis on tourism development and co-ordination, would facilitate a greater range of choices for tourism development together with im proved ability for the Authority to influence that development. Some of the positive aspects of this option would be the creation of employment opportunities and widening of the economic base through increased tourism activities. However, the option could have negative aspects including undesirable environmental effects and loss of amenity unless tourist developments are strictly controlled. 91 ------··------ 12.0 WATER RESOURCES 12.1 INTRODUCTION The UYV&DRA Investigations Report [1982] describes the vital importance of the Region as a supplier of domestic and industrial water for metropolitan Melbourne and the Region. The appropriate planning policies for maintenance of water quality and quantity , reflect ing the importance of the Region for water production, were developed and approved by the Government in 1982 [UYV&DRA Regional Strategy Plan]. The continuation of these policies together with relevant administrative and management changes that have taken place since 1982 were considered as a sound base for future planning of water resources. The Authority therefore resolved that there was no need to carry out a specific study of water resources as a part of the current reinvestigation of the Region. For the above reason, this chapter will consider administrative and management changes and their implications for the protection and management of water resources in the Region. 12.2 EXISTING SITUATION The major change to administration and management of water resources and supply took place in 1983 when the M.M.B.W. assumed the roles of water supply, sewerage and main drainage for most of the Region. This administrative change resulted in abolition of four local waterworks trusts [ie. Healesville Waterworks Trust, Warburton Waterworks Trust, Yarra Junction Waterworks Trust and Woori Yallock-Launching Place Waterworks Trust], a number of minor divertors and three sewerage authorities [ie. Shire of Lillydale, Shire of Healesville and the Shire of Upper Yarra Sewerage Authorities]. Currently the Emerald District Water Board is responsible for a small part of the Region including Menzies Creek, Clematis, Emerald, Macclesfield, Avonsleigh and Cockatoo, and the M.M.B.W. is responsible for the rest of the Region. This rationalisation and co-ordination of water resources management constituted one of the major policy recommendations in the Regional Strategy Plan [UYV&DRA 1982]. The Region continues to be a major source of water for approximately 80% of Melbourne residents and the residents living in the Region. Most of the water is collected in the forested catchments in the east of the Region which are managed by the M.M.B.W. solely for water production purposes. This management system has resulted in production of high water quality without the need for expensive or sophisticated treatment prior to distribution to the consumer. Water is also collected from inhabited catchments upstream of Yering Gorge where it is pumped into Sugarloaf Reservoir for treatment prior to consumption. The Regional Strategy Plan ( 1982) recognizes the Government's continuing option for the construction of the Watsons Creek Dam, which may further increase the importance of the Region as a water supplier for metropolitan Melbourne and the Region. The Emerald District Water Board, which supplies water to a small part of the Region, collects its water from Mccrae Creek and Tomahawk Creek catchments. 93 12.3 ISSUES The 1982 Investigations Report identifies the maintenance of water quality and yields as major issues concerning water resources. A number of pertinent elements needing attention were identified, the most significant being waste water management, improved land management practices, the need to maintain stringent management practices in forested catchments and the provision of reticulated water in unsewered areas. In 1984 the Government adopted a State Environment Protection Policy No. W29 [Waters of the Yarra River and Tributaries] prepared under provisions of the Environment Protec tion Act [Victorian Government, 1984). This pol icy identifies beneficial uses to be protected and specifies objectives and attainment programmes for water quality for various segments of the streams. Since 1983, with the extension of the M.M.B.W. responsibilities for water, sewerage and drainage into most of the Region, significant additional areas have been provided with reticulated sewerage. In 1979 it was estimated that only about 25% of the population living in the urban areas of the Region was provided with reticulated sewerage. The situation in 1988 was that about 75% ·of the Region's urban population were either provided with reticulated sewerage or were on a committed three year programme for provision [UYV&DRA 1988). More detailed discussion on this topic is included in Chapter 13. Any land use involving land disturbance can cause deterioration of water quality through increased soil erosion and transportation of various chemicals attached to the soil particles. The entry of such particles into water bodies is usually dispersed and much more difficult to control than the sources with a specific point of discharge such as sewerage plants. In addition to the loss of quality there is a decline of quantity of water following erosion, due to the loss in sub-surface storage capacity. It therefore most important that all activities involving soil disturbance such as construction sites, agricul tural and forestry activities and extractive industries are carried out in a manner. that minimises run-off arising from land disturbance, especially during construction stages. The Regional Strategy Plan of 1982 provides a number of policies for increased protec tion of streams and streamside vegetation as well as for improved land management. An advisory brochure has been produced for revegetation for the stream banks. The rec ommendations of this brochure if implemented could assist greatly wfth maintenance of water quality (UYV&DRA and M.M.B.W, 1987). The upper reaches of the forested catchments of the Yarra River are managed by the M.M.B.W. primarily for water production purposes. The management system used pro vides for very strict control of access to the catchments and very limited timber utilisation. Up to now it has achieved high water yields and quality. This management system which has proved itself in the past as the most appropriate way to manage catchments for water production and for conservation of highly significant flora and fauna should continue in the future. The provision of reticulated water to the areas without reticulated sewerage or other appropriate waste disposal systems is still an important issue because of the potential of increased run-off of untreated domestic water into water courses and storages. It is therefore important that the provision of the .two services is co-ordinated. This objective will be much easier to achieve since the rationalisation of the water resource manage ment which took place in 1983. 94 12.4 PLANNING IMPLICATIONS The policies developed and approved by the Government [UYV &DRA 1982] for water resources provide a sound base for maintenance and improvements of water quality and yields. These policies provide for continuation of management systems for forested catchments that are conducive to high water quality and yields and introduction of more sensitive land management techniques in the rest of the catchment. It also provides for co-ordinated provision of reticulated services and the provision of backlog sewerage for urban areas in the Region. The implementation of these policies in the future together with improved management of non-point sources of pollutants constitute the main planning challenges for water re- sources in the Region. , 12.5 REFERENCES • Victorian Government, 1984. State Environment Protection Policy No. W29 [ Waters of The Yarra River and Tributaries J • Upper Yarra Valley & Dandenong Ranges Authority (UYVDRA), 1982. Regional Strategy Plan. October 1982. • Upper Yarra Valley & Dandenong ~anges Authority (UYVDRA), 1982. Investigations Report. • Upper Yarra Valley & Dandenong Ranges Authority and Melbourne and Metropolitan Board of works (UYVDRA & MMBW), 1987. . Upper Yarra River Revegetation and Land Management Guidelines • Upper Yarra Valley and Dandenong Ranges Authority (UYVDRA), 1988. Reticulated Services in the Upper Yarra Valley and Dandenong Ranges Region 95 WATER RESOURCES - POLICY OPTIONS . It is not considered necessary to generate options for planning of water resources. Continuation of the existing policies, with modifications taking into account administra tive and management changes, is considered appropriate for water resources. The main thrust of the existing policies is: (i) management of the forested catchments under control of the M.M.B.W. primarily for water production; (ii) achievement of objectives for water quality as prescribed by the Government; (iii) control of land use activities in a manner compatible with maintenance of water qua I ity and quantity; (iv) co-ordination and rationalization of water supply, waste water management and drainage, which has largely been achieved; (v) increased rate of provision of reticulated sewerage to urban areas, and (iv) maintenance of the option for development of Watsons Creek Dam. .. 96 13.0 RETICULATED SERVICES 13.1 INTRODUCTION The term reticulated services refers to a 'network' of services which pass through a system of pipes or wires either to or from buildings in the Region. The services examined inciude sewerage, water supply, electricity supply, gas supply, telephone service and stormwater drainage. These are services which are commonly expected to be provided to efficient urban areas in a modern society. 13.2 SEWERAGE 13.2.1 BACKGROUND Sewerage is generally the most expensive reticulated service to provide within an area and therefore it places the greatest constraints upon urban development. In 1979, when an investigation on sewerage systems was carried out during preparation of the current Regional Strategy Plan, there was a significant lack in the provision of sewerage facilities in the Region, with only 25% of the population of the Region's urban land being sewered. The remainder of the Region was largely dependent on septic tanks which require on site absorption to contain the disposal of effluent. Much of this on site absorption, particularly in the more densely developed areas, was not functioning effectively. Partially treated effluent was often draining off the generating sites, usually finding its way into and polluting the Region's streams. The lack of sewerage provision was aggravated by the fact that there were four sewerage authorities operating on an independent basis within the Region. Consequently, there was a need for a co-ordinated approach to the provision of sewerage facilities to urban areas within the Region. Co-ordination was necessary to ensure a cost efficient network whilst helping to speed up the provision of sewerage connections. The construction of the Sugarloaf Reservoir at Christmas Hills, which draws a major proportion of its water supply from the developed parts of the Region added emphasis to the need for co-ordination and expansion of the provision of reticulated sewerage. The provision of reticulated services within local areas invariably generates pressure for further development. This raises the issue of whether development is desirable in the area to be serviced. There is therefore also a need for a co-ordinated approach for the provision of services so that the subsequent development inducing effects can initiate growth in preferred urban areas. Another issue is that the disruptive effects caused by the construction of sewerage services must be minimised or prevented if the value of the Region's many sites or features of special significance is to be maintained. The planning approach adopted by the Authority in the Regional Strategy Plan has addressed these issues and established a broad policy framework for service provision through an urban phasing strategy. This approach has been intended to give a clear direction to the appropriate service agencies as to the areas within the Region where provision of services should have priority. Due· to its high construction costs and its 97 potential development inducing effects, this approach has been intended to apply to sewerage more than any other reticulated service. The intention is that Urban 1 and 2 Policy Areas be given priority for service provision. 13.2.2 CURRENT STATE OF RETICULATED SEWERAGE PROVISION IN THE REGION There has been a major expansion of the Region's reticulated sewerage system over the last decade. Reticulated sewerage facilities are either currently provided or are in the , process of being provided (ie. on a committed 3 year works program) to approximately 60% of the Region's Urban policy areas which accommodate approximately 75% of the Region's urban population. This compares with provision for only 25% of the population in urban areas of the Region in 1979. Although the areas which have been provided with reticulated sewerage are predomi nantly urban areas sever"al of the Regional Strategy Plan's Non-urban Policy areas (including parts of Millgrove, Mt. Evelyn, Montrose, Badger Creek, Emerald, Avonsleigh and Cockatoo) have also been sewered. As these areas have all been sewered since the Regional Strategy Plan was approved in October 1982 and as large areas of the Region's Urban policy areas still remain unsewered (including all of Warburton, Wesburn, Seville East, Wandin, Silvan and Wonga Park and large parts of Belgrave, Monbulk, Seville, Emerald, Healesville, Yarra Glen and Yarra Junction) the sewering of these Non-urban Policy areas is in conflict with the Regional Strategy Plan's Urban Phasing Strategy. The sewering of the above mentioned Non-urban Policy areas has occurred with the agree ment of the Authority. Today there are only two sewerage authorities in the Region: the Melbourne and Metropolitan Board of Works (M.M.B.W.) and the. Emerald District Water Board (E.D.W.B). The M.M.B.W. became the sewerage, water supply and drainage authority for all of the Yarra catchment (with minor exceptions) in 1983. In respect of sewerage it took over the functions of three previous sewerage authorities. This greatly improved the co-ordinated approach to service provision. The M.M.B.W. is now the sewerage authority for the whole of the Region except that part of the Shire of Sherbrooke east of Selby (ie. Menzies Creek, Ciemat"is, Emerald, Macclesfield, Avonsleigh and part of Cockatoo) which is the responsibility of the E.D.W.B. 13.2.3 OPPORTUNITIES AND CONSTRAINTS FOR EXPANSION OF THE REGION'S RE ' TICULA TED SEWERAGE SYSTEMS. The M.M.B.W. has advised. of the opportunities and constraints for expansion of reticu lated sewerage systems in the Upper Yarra Valley, as input to the Authority's investiga tion of the feasibility of limited extensions ·to Urban policy areas. The M.M.B.W.'s response (discussed in detail in U.Y.V.D.R.A 198Ba) is summarised below. The urban areas which are able to accommodate some additional urban development with minimal sewerage headworks expansion include: • Healesville; • Yarra Glen (only if a proposed regional treatment plant is constructed); • Moorool bark; • South Kilsyth; • Woori Yallock; • Yarra Junction; and 98 • Warburton (the latter 3 towns when the proposed trunk sewer between Warburton and Woori Yallock and the regional treatment plant at Woori Yallock are con structed). Other areas are capable of being sewered but substantial headworks (one or a combina tion of treatment plant expansions, pumping stations or large trunk sewers) would be required, at considerable cost. Gravity services are preferred to those which require pumping. 13.3 RETICULATED WATER SUPPLY 13.3.1 BACKGROUND Reticulated water systems are comprised of two overall components: a supply system and a distribution system. The Region is of vital importance to the Melbourne Metropolitan area as a source for water supply. The Region's large forested catchments of Maroondah, O'Shannassy, Upper Yarra, Thompson (on!y part of which is within the Region), Starva tion Creek, McMahon's Creek, Armstrong Creek, Cement Creek and Coranderrk Creek, together with the overall Yarra catchment upstream of Yering Gorge supply Melbourne with approximately 80% of its current water supply. However it is the distribution system which is the focus of this section because the Region's catchments are capable· of supplying water for large scale additional development but its distribution systems provide constraints to further urban development. Water distribution headworks comprise large supply mains, service reservoirs, pumping stations and pressure reducing stations. These are the major constraints to urban devel opment because they are the most expensive components of the distribution system and their capacity dictates the extent of the area to be supplied. In 1979, when an investigation on water supply was carried out during preparation of the current Regional Strategy Plan, reticulated water was supplied to the .majority of built up areas in the Region but water supply in various parts of the Region was the responsibility of six different water supply authorities. As with other reticulated services there was a need for a co-ordinated approach for the provisions of service$.SO that the subsequent development inducing effects could initiate growth in preferred urban areas. · ·· As mentioned in Section 13.2.1 above, th~ planning approach adopted by the Authority in order to address the issue of co-ordination of reticulated services has been the establish ment of a broad framework for service provision through an urban phasing strategy. 13.3.2 CURRENT STA TE OF RETICULATED WATER PROVISION IN THE REGION All of the Region's urban areas and most of the more closely settled rural areas currently have reticulated water supply. Additional areas are serviced by private mains which tap into the water authorities mains. Today there are only two water supply authorities in the Region: the M.M.B.W. and the E.D.W.B. Their areas of responsibility for water supply are the same as for sewerage (outlined in Section 13.2.2 above). This has greatly improved the co-ordinated approach to service provision. 13.3.3 OPPORTUNITIES AND CONSTRAINTS FOR EXPANSION OF THE REGION'S RE TICULATED WATER SUPPLY SYSTEMS. The M.M.B.W. has advised of opportunities and constraints for expansion of reticulated water supply systems in the Upper Yarra Valley, as input to the Authority's investigation 99 ------···------, of the feasibility of limited extensions to urban policy areas. The M.M.B.W.'s response (discussed in detail in U.Y.V. & D.R.A. 1988 a) is summarised below. The M.M.B.W. has advised that no major rural to urban rezonings could be supplied from existing water supply systems without significant augmentation to the distribution system. However existing water supply systems can cope with relatively minor. expansion of several of the urban areas within the Region. These areas include: • Yarra Glen (up to 200 households) • Chirnside Park (up to 300 households) " Moorool bark • South Kilsyth • Wandin, Seville and Seville East (as a new system is planned for the early 1990's) • Woori Yallock (only up to 50 additional households) • Yarra Junction (only up to 50 additional households) • Warburton (only up to 50 additional households) 13.4 ELECTRICITY SUPPLY All the developed parts of the Region are fully serviced by reticulated electricity supplied by the State Electricity Commission of Victoria (S.E.C). As when the current Regional Strategy Plan was prepared, the principal 'issues in respect of electricity supply are the development-inducing effects of new services in rural areas and the landscape impact created by the construction and maintenance requirements of services. The S.E.C., as part of an ongoing program, upgrades and/or extends its distribution system to meet customer demand and general load growth as required. The S.E.C. has existing 500 kv tower transmission lines located through the Shires of Upper Yarra, Lil!ydale. and Healesville. These transmission lines are located in an easement running nor'ih-wes·t from Drouin West to just west of Launching Place. The easement then passes to the west of Coldstream and branches south of Yarra Glen with one easement continuing to South Morang via Kangaroo Ground and the other to Templestowe via Wonga Park. These easements have provision for two further transmis sion lines (one 500 kv and one 220 kv) along side the existing lines as far as Coldstream West and one further transmission line between Coldstream West and Templestowe. A future Coldstream Terminal Station is proposed on a site in St. Leonard's Road. On current planning, these additional lines and the terminal station would not be constructed within the next 10 years. There is increasing pressure within the Region for electricity supply works, particularly those in overhead/above ground situations, to be more sensitive to the environmental and landscape values of the Region. This pressure is being exerted not only where new lines are being constructed but also where maintenance clearing and trimming of trees adjacent to lines is occurring. With the ever present threat of resource and money stringency, clearing of lines is becoming increasingly harsher in an effort to lengthen the 'return' time for S.E.C. clearance workers. Despite a long and protracted period of negotiation with the S.E.C., the designation of the Dandenong Ranges as an "Area of Particular Significance" (an area within which negotia tion will take place over the way in which powerlines are constructed and cleared), has still not occurred. This is partly due to difficulties in getting agreement with the Country 100 Fire Authority (notwithstanding that both Local Advisory Groups do not oppose the proposal) and partly due to internal processing problems with the S.E.C.'s Tree Clearance Consultative Committee. Given that the recommendation for 'declaration' of the Dan denong Ranges came from the S.E.C.'s Minister, concern should be expressed at the continued delay in making the declaration. The Authority should ensure that the principles of greater sensitivity to the environment, available through the proposals for an "Area of Particular Significance" are embodied in the policies of the Regional Strategy Plan and are implemented through the Authority's statutory ability to review "works and undertakings" of the S.E.C. Attention should also be drawn to the inability of the Authority to have the S.E.C. put forward a viable and realistic alternative which would see the removal from the western face of the Dan denong Ranges of the High Voltage supply line to the Main Ridge area (which runs from Sheffield Road, Montrose, to Ridge Road, Mt. Dandenong). There is ample evidence to show that the undergrounding of powerlines and the use of insulated and bundled conductors (now with both high and low voltage available) will give significant gains in protecting the environment and landscape and in reducing the fire risk that is present with bare conductors in high fire risk areas. The S.E.C. has moved to require that all service supplies (ie. on private property) in high fire risk areas be by way of underground cable. However, it seems reluctant to proceed in the same manner for reticulation services in the same areas. 13.5 RETICULATED GAS SUPPLY The Gas and Fuel Corporation (G.F.C.) currently provides reticulated gas to the more closely developed areas comprising the western parts of the Shires of Lilydale and Sherbrooke. No reticuated gas is supplied in the Shires of Healesville and Upper Yarra. Over the past few years only relatively minor extensions have been made to the reticulated gas system in the Region. The Gas and Fuel Corporation will extend its reticulated gas system only if it can be demonstrated to be economically viable (based on forecast gas sales, usually over a 1O year period). This means that areas remote from the existing reticulation system, includ ing the Shires of Healesville and Upper Yarra, are only likely to be serviced if there is a large population increase, a major planning policy change, or a large industrial consumer, to alter this viability. 13.6 TELEPHONE SERVICE Telecom Australia has supplied telephone service to all the developed parts of the Region. It will extend its telephone service to meet demand. 13. 7 DRAINAGE SERVICES Overall drainage within the Region is the responsibility of two drainage authorities: the M.M.B.W. in respect of the Yarra River catchment and the Dandenong Valley Authority in respect of the Dandenong Creek catchment. These authorities are responsible or large scale drainage works (such as main drains) and flood mitigation measures (such as retarding basins). The construction and maintenance ·of. the Region's reticulated stormwater drainage sys tem· is the responsibility of each of the Shire Councils. The Shires construct local drainage schemes in existing urban areas which have been subdivided long ago. These 101 local drainage schemes often accompany local street construction schemes and are usually undertaken by Councils at landowners expense. In new urban subdivisions the subdividers must construct the drainage schemes but once they are completed their maintenance becomes the responsibility of the Council. 13.8 ISSUES Two of the major planning issues which affected the Region in 1979 (when the investiga tions were being carried out during preparation of the current Regional Strategy Plan) have been addressed and substantially resolved over the past decade. The first issue is that there was a significant lack in the provision of sewerage facilities in the Region in 1979, with reticulated sewerage facilities provided for only about 25% of the population in urban areas in the Region. There has been a major expansion of the Region's sewerage systems over the last decade, reticulated sewerage now being pro vided to approximately 60% of ·the Region's urban policy areas, accommodating approxi mately 75% of the Region's urban population. The second issue is that in 1979 there was a need for a co-ordinated approach to the provision of reticulated services, due largely to tile fact that there were numerous sewerage authorities and water supply authorities operating on an independent basis within the Region. As there are now only two water supply and sewerage authorities responsible for the Region (each being responsible for both services) the co-ordination of service provision within the Region has greatly improved. The other planning issues related to reticulated service provision in the Region are still just as pertinent today as they were in 1979. These issues relate to: • the need for reticulated sewer.age provision to be directed to the preferred urban areas so that the priority areas are serviced first; • the need to ensure that the location, construction and maintenance of reticulated services minimises damage to the environment; and • the need to sewer urban areas which are currently unsewered and are causing significant pollution of the Region's streams. Ease of reticulated service provision should be a major consideration in assessing the appropriateness of any extensions of urban areas in the Upper Yarra Valley because some areas can be provided with reticulated services much more readily, and at lower cost, than others. However other areas may be able to be serviced if developers are prepared to meet construction costs. The servicing issues then become the potential on-going cost to the community and environmental effects. · 13.9 REFERENCES • McDill, J. and Kennedy, F. ( 1979), (a) Notes on Water Supply Systems in the Region. Upper Yarra Valley and Dandenong Ranges Authority • McDill, J. and Kennedy, F. (1979), (b) Notes on Sewerage Systems in the Reg;on. Upper Yarra Valley and Dandenong Ranges Authority • Upper Yarra Valley and Dandenong Ranges Authority (U.Y.V. & D.R.A.) (1988) Reticulated Services in the Upper Yarra Valley and Dandenong Ranges Region. .. 102 RETICULATED SERVICES - POLICY OPTIONS Two pol icy options are identified. (1) Retain existing policies related to reticulated services in the Region (including the urban phasing strategy, which is based on reticulated service provision) but simply: • extend the Urban 1 Policy Area to include all areas which have been provided with reticulated sewerage over the last 1O years; and • extend the Urban 2 Policy Area to include all areas which are currently programmed to be provided with reticulated sewerage. (2) (a) Abolish the Urban Phasing Strategy within the Regional Strategy Plan (and the individual designation of Urban 1, 2 and 3 Policy Areas based on service provision) and replace with a requirement that reticulated services be directed to serve Urban Land generally. This would leave the priority of which urban areas are to be provided with services up to the servicing authorities. (b) Require that no subdivision of Urban Land (except for boundary adjustments) occur until reticulated sewerage or method of disposal which meets Environ ment Protection Authority requirments can be provided to service the resultant lots. (c) Retain existing policies which require that the location, construction and main tenance of reticulated services minimises damage to the environment (e.g. PB.12, PS. 14, PB.15, P8.17). (d) Require that future electricity supplies within the Region be directed in such a way that ultimately all power reticulation (both reticulation and service sup plies) will be by underground cable. To this end, electricity supply within all new subdivisions must be by way of underground cables. · The first option would simply ensure the current anomalies in existing policies, where the Urban policy areas no longer conform with the current servicing situation, are rectified. The second option is identified because there is no longer a need for Authority involve ment in the co-ordination of reticulated service provision within urban areas, given that there are now only two water supply and sewerage authorities in the Region;and that there has been significant expansion of sewerage service provision over the last 1O years, with 60% of urban areas (75% of the urban population) now provided with reticulated sewerage. The only urban areas which are unlikely to be sewered over the next 1O years are Wong a Park and Silvan. It is now considered more appropriate to leave the priority for servicing within urban areas up to the servicing authorities. The Authority should, however, retain a policy which requires new reticulated services to be directed to Urban Land to ensure that service provision does not have growth inducing effects in rural areas. The classification of different types of Urban Pol icy Area (i.e. Urban 1, Urban 2, etc.) would now more appropriately relate primarily to the environment, rather than simply service provision. For example, urban areas which have no environmental constraints and are fully serviced warrant different planning policies to urban areas which have environmental constraints such as steep slopes, forest cover, etc. Part (b) of the second option would ensure that new allotments are not created if their development could have detrimental affects on the Region's water quality. 103 Part (d) of the second option would ensure that electricity supply is compatible with the Region's significant environments and landscapes. For too lorig the attitude has been that the trees and landscape must, as a matter of course, be modified to accept the constraints of electricity supply. It is now time to state that within the Region the landscape and enviroment are an identified resource of State Significance and that the supply of electricity must be modified so that it is provided within the constraints of those enviromental and landscape values. 104 14.0 SITES OF SIGNIFICANCE 14.1 INTRODUCTION The Region has long been recognised as an important conservation area because of its great diversity of flora, fauna and sites of cultural significance in relatively close proximity to Melbourne. In order to maintain and enhance the special qualities of the Region it is necessary to identify the Region's most significant or important natural and man made features and ensure that they are conserved. Sites of botanical, zoological, historical and archaeological significance to the Region are designated in the Regional Strategy Plan 1982 and pol icy and action statements directed to the conservation of these sites are incorporated in the Plan. As sites of significance are dynamic and change over time (due to changes in site conditions, land management etc.) it has been necessary to review the sites of signifi cance and appropriate management measures as part of the re-investigation of the Region. Studies have therefore been undertaken on the status, boundaries and manage ment implications of sites of botanical significance (McMahon et. al. 1989), sites of zoological significance (Mansergh et. al. 1989) and sites of historical and architectural significance (U.Y.V. & D.R.A 1988) to update studies undertaken during preparation of the current Regional Strategy Plan. In addition, information is available on the first major survey of Aboriginal archaeological Sites in the Region, which was undertaken for the Victoria Archaeological Survey (du Cros, 1987). The above-mentioned studies have demonstrated that the Region has a rich and diverse environmental and cultural heritage. An important legacy has been maintained in the Region when it has been largely lost in many other areas in the State. 14.2 ISSUES IN CONSERVATION OF SITES OF BOTANICAL AND ZOO LOGICAL SIGNIFICANCE A decade has passed since the original delineation of sites of botanical significance (Gullan et. al. 1979) and sites of zoological significance (Fleming et. al. 1979). In the intervening period many sites or areas within sites have been destroyed through clearing of vegetation or have been degraded. Also several sites, notably the Yarra River, have not had revegetation or other ameliorative environmental works implemented at the scale or within the time frame recommended. Environmental damage and attrition of wildlife populations has occurred and continues to occur. Conversely, there are some areas where the significant botanical or zoological values have been enhanced or protected. Sadly however, the losses outweigh the gains. Conservation of native vegetation is critical to the maintenance of both sites of botanical and zoological significance. The Region contains many reserves where conservation of the native vegetation is a high priority, however these reserves are inadequate to ensure the conservation of the Region's important flora ·and fauna. The maintenance of biological values on private as well as public land is mandatory if the native flora and fauna are to have a long term future. The most prominent management issues concerning the degradation of native vegetation in the Region include: 105 • fragmentation due to land subdivision and development; • weed invasions; • grazing of domestic stock; • timber harvesting; and • fuel reduction for fire prevention. These processes, combined with data on land clearance, strongly suggest that native vegetation on private land, both within and outside the sites of significance, is a threatened resource in the Region. McMahon et. al. ( 1989) estimate that appreciably less than 1O per cent of private land in the Region contains reasonably intact native vegetation. If the current set of degrading processes continue, they estimate that the intact native vegetation which currently exists on the Region's private land could be largely eliminated in two to three decades. In addition to the direct and obvious loss of natural vegetation cover through land clearing, degradation often occurs as a subtle deterioration in quality through adverse management practices (eg. stock grazing) or lack of preventative management (eg. weed control). Where natural ecological processes or the role of species other thari trees are not taken into account in management practices, the integrity of native bushland can be rapidly lost.. Even if the tree cover is retained, the understorey species can be replaced by weeds and habitat values for fauna seriously reduced. Degradation of native vegetation means an alteration to its structure or species composi tion as a result of human activity. Changes to the vegetation composition and structure are almost invariably accompanied by, or are a consequence of, weed invasions. This is over-wh.elmingly the dominant vegetation management. issue. The U.Y.V. & D.R. Region supports populations of 24 faunal species having a threatened conservation status in Victoria, several of which are regarded as endangered or vulner able eg. Helmeted Honeyeater, Regent Honeyeater and Leadbeater's Possum. Including fish, over 300 specie? have been recorded in the U.Y.V. & D.R. Region which includes over 60% of Victoria's avi-fauna species. Of these 300 species the populations (or localised populations) of approximately one third are considered to be subject of threatening processes in the U.Y.V. & D.R. Region (Mansergh et. al. 1989). Of particular concern in the U.Y.V.D.R.Region are those species associated with wetlands, tall open forest and related wet gully - riparian vegetation. The threatening processes· to the fauna include: • habitat destruction, modification or fragmentation; • predation by introduced animals; • competition with introduced species and/or native species; • pollution; • disturbance; and • interruption of natural drainage and stream flow. Conservation and appropriate management of sites of sign if i·cance should be the primary policy to conserve the faunal complement of the Region. However, populations of fauna in these "high points" are enhanced by recruitment and dispersal to and from all other areas of remaining native vegetation. Therefore, to retain, enhance and/or restore the 106 fauna! conservation integrity of many sites, vegetated wildlife corridors are required between sites. 14.3 ISSUES IN CONSERVATION OF SITES OF CULTURAL SIGNIFICANCE More than a decade has passed since the original report on conservation of sites and structures· of historical and archaeological significance in the Region (Tansley, 1978) In the intervening period, although several historic buildings have been well restored, several have been demolished, some have been modified to such an extent that they are no longer considered to be of regional historical significance and others have been allowed to fall into very poor condition. It is insufficient to simply protect sites or structures of cultural significance from de molition or unsympathetic alteration. They must also be maintained in a sound condition. Buildings should continue· to be used and should not simply become 'museum pieces'. This ongoing conservation requires knowledge of the significance of the sites or struc tures and practice of suitable management techniques by the landowners, occupiers and responsible authorities. 14.4 PLANNING IMPLICATIONS Adequate conservation of all sites of significance in the U.Y.V. & D.R. Region will require improvements in land use planning and land management. There are two major pre-requisites for the conservation of sites or structures of signifi cance: (i) innovative and positive planning at both the Regional and Local Government level; and (ii) increasing public awareness of the value of the resource. Innovative and positive pianning requires the facilitation or active encouragement of conservation measures such as re-vegetation programs, weed eradication programs, fencing stock out of forested areas and restoration of historic buildings. This type of planning appears to be inadequate in the Region at present. · · , Planning controls over matters such as clearing of native vegetation and demolition of historic buildings are, of course, also necessary. These types of controls are currently in operation for most sites of significance in the Region but difficulties exist with enforce ment of these controls. To be effective, such controls must be capable of rapid and effective enforcement. Community involvement and support in caring for sites of significance is of paramount importance to the conservation of the Region's heritage. It is most important that the owners and occupiers of sites of significance are made fully aware of why their properties are significant, the importance of conservation and how they are best conserved. Without a basic commitment from the landowner conservation of significant features is not possible. Landowners cari not only ensure that sites are conserved whilst in their ownership but can assist with Iona term conservation of the sites through participation in such, schemes as the Victorian Conservation Trust's covenenting program, which will affect the land in perpetuity th.rough registration on title. 107 The general public should also be made aware of the Region's rich natural and cultural heritage, the sites and structures of significance and be encouraged to participate in conservation programs. · 14.5 REFERENCES • duCros, Hilary (October 1987). An Archaeological Survey of the Upper Yarra Valley and Dandenong Ranges. A Report to the Victoria Archaeological Survey by Anutech Pty. Ltd. • rleming, M.R., Temby, l.D. and Thomson, R.L. ( 1979). Sites of Zoological Significance in the Upper Yarra Region. Ministry for Conserva tion, Victoria • Gull an, P.K., Parkes, D.M., Morton, A.G.A and Barley, M.J. ( 1979) Sites of Botanical Significance in the Upper Yarra Region.· Ministry for Conserva tion, Victoria • McMahon, A.R.G., Frood, D., Bedggood, S.E. and Carr, G.W. (1989) . . A Review of Sites .of Botanical Significance in the Upper Yarra Valley and · Dandenong Ranges Region. Prepared for Upper Yarra Valley and Dandenong Ranges Authority by Ecological Horticulture Pty. Ltd and Botanical Survey and Vegetation Management • Mansergh, I., Beardsell, C., Bennett, S., Brereton, R. O'Connor, W., Sandiford, K. and Schulz, M. (1989). Sites of Zoological Significance in the Upper Yarra Valley (Western Sections) and· Dandenong Ranges. Prepared ·for Upper Yarra Valley and Dandenong Ranges Authority by Wild I ife Management Branch, Aurthur Ry I ah Institute for Environmental Research • Rosengren, N., Frood, D. and Lowe K. (1983). Sites of Enviromental Significance in the Flood Plain of the Upper Yarra River. Sites of Geological, Geomorphological, Botanical and Zoological Significance in the Flood Plain of the Upper Yarra River. Prepared for Upper Yarra Valley and Dan denong Ranges. Authority by Department of Geography, University of Melbourne • Tansley, M. (1978). The Conservation of Sites and. Structures of Historical and Archaeological Sig nificance in the Upper Yarra Valley and Dandenong FJanges Region. Upper Yarra Valley and Dandenong Ranges Authority • Upper Yarra Valley and Dandenong Ranges Authority (November, 1988). Conservation of Sites and Structures of Historical and Architectural Significance in the Upper Yarra Valley and Dandenong Ranges Region. 108 SITES OF SIGNIFICANCE-·POLICY OPTIONS Two options are identified. ( 1) Retain existing policies relating to sites of botanical, zoological, historical and archaeological significance. (2) Strengthen planning and educational provisions for the conservation and enhance ment of sites of significance and special environmental qualities of the Region by the following additions or amendments to current policies. (a) Prohibit the clearing of native vegetation within sites of botanical or zoological significance. (b) Extend permit control on removal of natural vegetation to include all natural vegetation and not simply trees. (c) Prohibit grazing within sites of botanical.or zoological significance. (d) Facilitate and actively encourage environmental weed eradication measures and actively discourage planting of environmental weeds. · (e) Facilitate and actively encourage revegetation with indigenous species, par ticularly in corridors between sites of significance. (f) Actively encourage landowners to maintain and protect natural vegetation. ,1 (g) Investigate the feasibility of prohibiting or strictly controlling the keeping of cats and dogs within and adjacent to sites of botanical or zoological signifi cance. (h) Delete the policies (P3.68 and P3.93) which generally allow tree cl~aring on large allotments in Rural 1 and 2 Policy Areas provided that the land does not ., contain a Site of Botanical or Zoological Significance. Tree clearing on land other than that containing Sites of Botanical or Zoological Significance would be subject to permit but no inference given that it would be generally allowed. (i) Regulate the number and size of dams to maintain minimum stream flows. (j) Actively encourage fencing of stock from areas containing intact nawral vege- tation. · (k) Actively encourage restoration of sites and structures of historical or archae- ological significance. · (I) Facilitate measures to inform all owners and occupiers of sites of significance as to why. their properties are significant, the importance of conservation and the best way to conserve such sites. (m) Facilitate measures to inform residents and visitors of the Region's rich natural and cultural heritage and the importance of conservation. (n) Require public utilities and firebreaks, wherever possible, to be aligned over cleared land rather than areas of remnant vegetation. (o) Require natural vegetation on roadside reserves to be conserved, wherever possible, during road construction and upgrading. (p) Investigate the feasibility of providing incentives for the conservation of sites of significance. (q) Develop an environmental weed management strategy for the Region. 109 (r) Ensure that fire prevention measures in areas of native vegetation have con servation of flora and fauna as a high priority and that fuel reduction programs are monitored to evaluate whether the objectives are being met in the medium to long term. (s) Promote amendments to the licencing system for use of public land to ensure that conservation of sites of significance is a high priority. The first option includes many planning policies aimed at conservation of sites of significance. However, the second option goes even further in planning for the long term conservation of sites of significance and the special environmental qualities of the Region. It is derived from the need to implement the State Conservation Strategy, Flora and Fauna Guarantee Act and State and Federal policies relating to soil erosion. Although the intent of current policies regarding sites of significance is certainly aligne9 to their long term conservation, many current policies are fundamentally deficient for the task of conserving the sites (McKinty et. al. 1988, McMahon et. al..1989 and Mansergh et. al. 1989). 110 15.0 LAND HAZARDS 15.1 INTRODUCTION Land within the Region which is subject to high bushfire risk, flooding and slope instability needs to be planned for, and managed in a manner which reduces to an acceptable level any danger to life, to property, and to the Region's ecological systems and environmental qualities. An examination of planning issues and policy implications relating to these land hazards is therefore a necessary part of the Re-investigation process. 15.2 FIRE PREVENTION 15.2.1 RESPONSIBILITIES IN FIRE PREVENTION The previous Investigations Report (1982) describes the Region as "one of the most wildfire prone areas in the world", because of its mountainous terrain, its inflammible native vegetation, its prevailing hot summer winds, and its forest-urban characteristics. The Authority therefore co-operates with the statutory bodies which have major respon sibilities in fire prevention, to ensure that its land use planning policies and decisions complement the fire prevention plans and practices of these bodies. The main statutory basis for fire prevention in the Region is provided by the Country Fire Authority Act ( 1958), and the Forests Act ( 1958): • The Country Fire Authority Act gives responsibility to municipalities and public authorities for fire prevention on land or roads which are vested in or maintained by these bodies. The Country Fire Authority co-ordinates all fire prevention activities through Regional and Municipal Fire Prevention Committees. • Under the Forests Act, the Department of Conservation Forests and Lands is respon sible for fire prevention in State Forests, National Parks and Protected Public Land. Forest Officers may issue permits for fuel reduction burning and may order removal of fire hazards in areas under the Department's control. . The Regional Strategy Plan ( 1982) requires that Fire Prevention Plans prepared by Regional and Municipal Fire Prevention Committees and other public authorities within the Region be referred to the UYV&DR Authority. These Fire Prevention Plans are reconciled with the Regional Strategy Plan to ensure that Authority decisions assist the implementation of adopted fire prevention measures, and that reasonable protection is given to sensitive environmental areas and valuable landscape features during fire prevention works. Supporting roles in fire prevention in which the Authority engages include: · • assisting, wherever possible, in the public promotion of bushfire safety literature; • ensuring that, where high fire risk prevails, all Planning Schemes in the Region incorporate special fire protection conditions such as those contained in the pub lication "Design and Siting Guidelines - Bushfire Protection for Rural Houses" (1987) which was jointly prepared by the Ministry for Planning and Environment (MPE) and the Country Fire Authority (CFA); and • prohibiting inappropriate uses or developments in fire buffer zones designated in the Regional Strategy Plan. 111 The Authority carries out its fire prevention roles with the assistance and advice of its Technical Consultative Committee - Fire, which comprises representatives of the UYV&DR Authority, the Country Fire Authority, and the Department of Conservation Forests and Lands. The Regional Strategy Plan Policies for fire prevention, where they relate to land use and development, are implemented through Regional and Local Sections of Planning Schemes in the Region's four Shires. There appears to be progress towards an adequate translation of these Policies to the Planning Schemes. 15.2.2 ISSUES IN FIRE PREVENTION PLANNING BUILDING SAFEGUARDS The MPE/CFA ( 1987) guidelines for bushfire protection provide valuable information on site selection, building layout and design, choice of materials, and landscaping for fire prevention and protection in fire hazard areas. Neverthless, although some Shires have fire prevention provisions relating to building construction in their Planning Schemes, the Victoria Building Regulations at present do not require builders to adhere to adequate safeguards in selection of materials and in design for minimising entry of airborne sparks and embers. This si.tuation is in the process of being remedied, as the Ministry for Planning and Environment is now preparing an Amendment to the Victoria Building Regulations where by special precautions will be required with new building construction in high fire risk areas. This Amendment is expected to propose that the Country Fire Authority, in consultation with municipal councils in fire prone areas, will determine specific areas where these special provisions will apply. IDENTIFICATION OF FIRE PRONE AREAS The Regional Strategy Plan has certain fire prevention policies which relate to or rely upon the identification of areas of high fire risk in the Region. Such identification is also required in the preparation of Fire Prevention Plans, and in the. application of the MPE/CFA (1987) guidelines for bushfire protection to fire prone areas. The current fire hazard rati.ng maps for the four Shires in the Region were produced during 1983 and 1984, and contain inconsistencies in risk assessment which are particularly evident across Shire boundaries. With a view to remedying this situation, the Country Fire Authority" is currently co-ordinating a review of fire hazard mapping involving local brigades and Municipal Fire Prevention Committees. The Authority has the opportunity to ·participate in such a review, through its representation on the Regional Fire Prevention Committee. 15.2.3 POLICY DIRECTIONS Based on issues and other matters discussed above, the following recommendations were adopted by the Authority at its October 1988 meeting: . 1. That the Authority supports the review of Fire Hazard Mapping at present being undertaken by the Country Fire Authority and Municipal Fire Prevention Committees within the Region, and as~ists, wherev.er possible, the continuing improvement of Fire Hazard Mapping techniques. 2. That the Authority ensures that, where high fire risk prevails, all Planning schemes in the Region incorporate special fire protection conditions such as those contained in MPE/CFA's "Design and Siting Guidelines - Bushfire Protection for Rural Houses", and that particular attention be given to matters including adequate road access, 112 .._____ J siting of buildings, landscaping and tree planting, and the availability qf a perma nent and accessible water supply for fire fighting purposes. 3. That the Authority pursue, as a possible Policy option, the introduction of fire protection conditions for building design and construction in areas of high fire risk, and their incorporation into all Planning Schemes in the Region. 4. That the Authority supports the continuation of the practice of referring to the Authority all Fire Prevention Plans prepared by Municipal and Regional Fire Preven tion Committees and by other public authorities, to ensure that: (a) these Plans do not conflict with Regional Strategy Plan Policies; and (b) the Region's natural resources are not unnecessarily damaged by fire preven tion measures. 5. That the Authority continues to assist, wherever possible, in the public promotion of bushfire safety mate_rial. 15.3 FLOODING 15.3. 1 EXISTING POLICIES Floodplains and floodways are important components of both the function and character of the Region. There are extensive floodplains within the Region, particularly along the Yarra River between Warburton and Wonga Park. A primary function of these areas is their ability to transfer water from stream overflows after excessive rainfall. They also serve as valuable native fauna habitats and wildlife corridors, af"!d the open nature of development-free land in many of these areas is also valued for its landscape signifi cance and for land-extensive recreation. Floodplains are generally productive agricultural areas, of prime importance to the farming community and to the regional economy. Policies for floodplains and floodways within the Region therefore relate to many objec tives, and so a total co-ordinated approach to the management of these areas is essential. rn preparing such pqlicies, consideration must be given to expert advice on the nature of flooding, on botanical, zoological and landscape conservation, on recreation and tourism, and on rural agricultural production. , ' ' The Regional Strategy Plan contains policies for flood prone land in all urban and non-urban policy areas. These policies restrict certain land us~s. building, clearing, landfill and subdivision in flood prone areas and adjacent to the Region's streams and watercourses. The Melbourne and Metropolitan Board of Works (MMBW) and the Dan denong Valley Authority (DVA) act as referral bodies for drainage, stream and floodplain management matters within their separate areas of responsibility. (Most of the Region lies within the MMBW area; the DVA's area of responsibility includes the western part of the Shire of Sherbrooke, and a relatively small south-western portion of the Shire of Lil lydale). Two categories of flood prone land have particular relevance to the Strategy Plan's policies, and are formally identified by the MMBW and DVA as part of a mapping and updating program (minor changes which clarify these definitions have been proposed by MMBW and DVA officers): • "Land liable to flooding" is a general term meaning land which has a 1 % ch~nce of being inundated in any one year. • "Flood fringe area" refers to land within an Urban Policy Area which is liable to flooding but which can be developed with acceptable consequences to flood storage and other floodway functions. 113 As detailed in the Regional Strategy Plan (policy statements A2.13, A2.30, and A2.49), development (including landfill) of Land Liable to Flooding in Urban Policy Areas is subject to the grant of a Permit by the Responsible Authority, and may be allowed only when ( 1) the land is designated as a Flood Fringe Area, (2) the floor level of any house or building is at least 300 mm above the designated flood level, and (3) the comments of the Drainage Authority have been taken into account. 15.3.2 ISSUES ASSESSING DEVELOPMENT PROPOSALS IN URBAN AREAS With the continuing growth and outward movement of Melbourne's population, there are increasing pressures for housing and other intensive developments, and for more re creational pursuits, within a couple of hours drive of the city. These pressures have led to questions relating to floodplain development, mainly in the Yarra River catchment area, which has become more of a possibility in Urban Policy Areas with the comparatively recent introduction of the Flood Fringe Area concept. A situation may arise where a drainage authority is asked to consider a proposed development in flood prone land which is not included in a Flood Fringe Area. Consistent with the total management approach to land use planning in floodplains discussed earlier in this chapter, it would be appropriate for the drainage authority to restrict its initial consideration of the proposal to the question of whether the subject land should be included in a new Flood Fringe Area, and that this question be resolved before any other planning issues relating to the application are examined. If such an inclusion was deemed to be warranted, the drainage authority could initiate proceedings with the UYV&DR Authority for identifying a new Flood Fringe Area,· after which the Planning Scheme can be amended and the proponent could submit a development application to the Responsible Authority in the usual way. POLICIES IN NON-URBAN AREAS Another question of possible concern is whether restrictions on floodplain development in rural areas are too rigid and in· some cases might cause unnecessary hardship. In Non-Urban Policy Areas, construction of a new house or building is prohibited on "land liable to flooding", whereas a farm building or landfill may be allowed providing they do not hinder flooding functions, detract from flood pondage, or create a hazard in the event of a flood. There may be isolated cases where this requirement prevents the meeting of a practical need, such as building a house on land on the edge of a floodplain - with minimal adverse effects on safety, on floodway functions, or on conservation and environmental values. The effects of such development could be relatively insignificant compared with the cumulative effects of developments just outside the floodplain - which might cause increased rainfall runoff and more stream pollution, and so add to flooding risk and adversely affect the downstream river environment. The current policy enables this (new house development) to be considered only if the land has been previously filled. 15.3.3 POLICY IMPLICATIONS DEFINITIONS It is considered that the proposed changes to the flooding area definitions in the Regional Strategy Plan, referred to in the previous section, are minor and non contentious, and within the spirit and intent of these definitions. 114 . ~ DEVELOPMENT OF FLOOD PRONE LAND IN URBAN POLICY AREAS The Regional Strategy Plan policies provide a logical basis for initial consi'deration of whether flood prone urban land which is the subject of a development application should be in a Flood Fringe Area (assuming it is not already in such an area). In terms of the definition of Flood Fringe Area this is a drainage and flooding function matter, and its delineation is subject to the recommendation of the Drainage Authority, the agreement of the UYV&DR Authority, and the acceptance of the Responsible Authority. On receipt of a development application by the Responsible Authority, it would appear appropriate therefore that the application be first referred to the relevant Drainage Authority for consideration of whether its delineation as a Flood Fringe Area be initiated. Questions relating to other regional or local planning implications of the application would be considered if and when such delineation has taken place. Once an area is delineated Flood Fringe Area, the UYV&DR Authority can exercise its particular role in decisions relating to development or landfill, which focuses on planning issues with regional implications as expressed in the Strategy Plan. Also, further ques tions relating to flooding function, and to consideration of health and safety matters, can be dealt with by the Responsible Authority and the Drainage Authority. 15.4 SLOPE INST ABILITY 15.4.1 CONSULT ANT STUDY Less obvious than bushfire and flooding, lands I ip and subs.idence can lead to serious problems and damage to buildings and other construction works. It is a Regional Strategy Plan policy to restrict development in areas prone to landslip and subsidence. Lack of information about areas within the Region which riave been or may be subject to the risk of landslip has led to the commissioning of a consultant study which was undertaken by Coffey and Partners, Consulting Engineers ( 1988) entitled "Lands I ip and Subsidence Risk Study". This study broadly assessed the Region's freehold land where most development is likely to take place (about 27% of the Region's 2,600 sq km), and reported on: • areas which may be prone to landslip or subsidence and could create a "hazard" for any use or development; and • appropriate planning measures to ensure that such land is managed in a manner which is not likely to endanger life or property. . .. While a number of areas of known or possible subsidence (main!y due to past under- ground mining activity) were identified, the question of subsidence was considered too site specific to be adequately considered in such a large area, and the study con centrated mainly on matters concerning landslip and creep. (Landslip includes earth slumps, slides and rock falls; creep is described as a slow downhill movement of soil and/or rock). The study established that the slope factor - related in Strategy Plan policies to problems of effluent disposal, soil erosion and possible aesthetic detriment - also has a strong relationship to the degree of risk of a possible lands I ip or creep. With this in mind, the consultants marked up on maps approximate areas identified as having high risk and medium risk of such landslip and creep. The consultants recommended the following procedures prior to development in, or immediately adjacent to, High and Medium Risk areas: 115 1. brief "geotechnical assessment" (including a "walkover" by. a suitably qualified and experienced evaiuator) should be carried out to determine the degree of risk and the extent of the area where special precautions should be taken. 2. If the "geotechnical assessment concluded that further investigation is required, it would then be necessary to carry out a "geotechnical investigation" to refine the conclusions of the "assessment" (this may involve drilling, testing etc. and would usually be more costly and time consuming). 3. It may then be concluded that development may not be possible without significant improvement or stabilising works, with an understanding that the owner would be . responsible for properly maintaining the site. 4. Where development already exists in High and Medium .Risk areas, planning restric tions should be introduced and the implications of the study assessed. The study contains a set of guidelines summarising "good and poor engineering prac tice", addressing matters including site planning, house design, clearing of vegetation, earthworks, drainage, erosion control and landscaping. It is particularly important to recognise factors which affec:t the rate of movement on unstable slopes - including the nature and depth of soil and rock, the presence of groundwater, and vegetation cover. The consultants "strongly recommend" further detailed work to more accurately assess risk levels in High and Medium Risk areas, and recommend regular upgrading of risk maps as more information becomes available. 15.4.2 ISSUES FOR CONSIDERATION NEED FOR A REFERRAL AUTHORITY There appears to be a need for some expert and independent body to advise on land instability questions, on the engaging of specialist consultants, on the appraisal of consultants' work, and on the preparation of general guidelines for development and other works in areas which may be subject to land instability. Should the Authority and/or the Shires in the Region decide to pursue a search for such a body, three possibilities could be investigated: • The Geological Survey section of the Department of Industry, Technology and Resources appears to suitably positioned and experienced to undertake this role. It may or may not be prepared to offer its services. • The Melbourne & Metropolitan Board of Works, Road Construction Authority, and State Electricity Commission of Victoria all undertake major construction works and have to deal with structural movement on unstable slopes. One of these bodies may have sufficient interest to offer its services. • A suitable and adequately qualified consultant may be found to act as an indepen dent advisor and arbiter on slope stability matters. (The Shire of Lillydale has recently engaged a Panel of "outside" consultants to assess the recommendations of a firm of geotechnical consultants relating to unstable land within the Shire.) THE QUESTION OF SLOPE Present Regional Strategy Plan policies generally refer to slope in relation to soil erosion, disposal of effluents and maintenance of landscape quality. The consultant study de scribes slopes of greater than 20% in certain conditions as being in the Medium Risk category of slope instability, and recommends procedures for further assessment and investigation, prior to evaluation of development proposals. The only direct link between slope and landslip in the present Regional Strategy Plan is in policies (A3. f9(c) and A3.43(c)) for Intensive Agriculture 1 and 2 Policy Areas, where the Responsible Authority 116 is required to refer all tree clearing applications on slopes greater than 20% to the Department of Conservation Forests and Lands for assessment. of erosion hazard or landslip. Acceptance of the con"sultant's recommended procedures for slopes greater than 20% would require an examination and possible change to Strategy Plan policies for ~ policy areas, as well as consideration of the most appropriate means of seeking expert advice where necessary. EXISTING DEVELOPMENTS The consultants did not comment on implications of the study for existing developments in Medium and High Risk areas, except to recommend that planning restrictions should be introduced and the implications of the study assessed. As local Councils have the primary responsibility for dealing with building construction and relevant safety precau tions, it would appear that they would be the appropriate bodies to consider and deal with this issue. PUBLIC LAND Approximately 73% of the Region is Public Land, most of which consists of State Forests and Water Catchment Areas managed by the Department of Conservation Forests and Lands and the Melbourne & Metropolitan Board of Works respectively. The study was generally confined to freehold land, and its implications for Public Land would have to be assessed by these and other agencies responsible for Public Land management. The Regional Strategy Plan policies for Public Land at present contain no provisions relating to landslip, subsidence or slope stability. FURTHER MAPPING The consultant study's mapping was by no means a final and accurate delineation of all areas of slope instability in that part of the Region investigated. A more detailed geotechnical assessment might reduce considerably the question of risk for substanti'al areas of hillside development, most of which are. classified Medium Risk on the basis of having slopes greater than 20%. The consultant also recommended that risk maps be regularly upgraded and refined as more information becomes available. 15.4.3 POLICY IMPLICATIONS The consultant has presented what appears to be important information on matters of slope stability in freehold land within the Region. Much of the information has relevance to the local Municipalities, which have fundamental responsibilities in approving and supervising building and other construction works in their respective areas of control. Before any implications and possible changes to Regional Strategy Plan policies can be satisfactorily explored, it is considered that the study's information; findings and rec ommendations should be evaluated by some body or persons deemed qualified to do so. Once such an evaluation has taken place and been accepted by the Authority, possible changes or additions to the Regional Strategy Plan's policies relating to slope stability can be considered, the question of further mapping of Medium and High Risk areas can be assessed, and the need for a referral body to advise on an "as needed" or on-going basis on matters of slope stability can be examined. 15.5 REFERENCES • Coffey & Partners Pty Ltd ( 1988), Upper Yarra Valley & Dandenong Ranges Authority - Landslip and Subsidence Risk Study. t17 L -- • Ministry for Planning and Envirinment and Country Fire Authority (1987), Design and Siting Guidelines - Bushfire Protection for Rural Houses. • Upper Yarra Valley & Dandenong Ranges Authority ( 1987), Bushfire Awareness in the Upper Yarra Valley and Dandenong Ranges Region. • Upper Yarra Valley and Dandenong Ranges Authority ( 1989), Re-investigation - Land Hazards Studies. 118 LAND HAZARDS - POLICY OPTIONS Policy options for land -hazards planning are divided into three categories - fire preven tion, flooding, and land instability. FIRE PREVENTION Current fire prevention policies in the Regional Strategy Plan are considered to be adequate except for fire protection conditions for buildings. It is not considered necessary to generate policy options for this matter. However the Authority encourages the introduction of a suitable amendment to the Victoria Building Regulations (VBRs) which will require special precautions with new building construction in high fire risk areas (such areas to be determined by the Country Fire Authority in consultation with Municipal Councils). FLOODING PROPOSED MINOR CHANGES AND CLARIFICATIONS Existing policies are supported, however minor changes are proposed which will: (a) clarify definitions of flood prone land, floodways, and flood fringe areas; and (b) clarify the process whereby development applications for flood prone land in urban areas will be considered only if and when the land in question has been delineated a "Flood Fringe Area". SLOPE INSTABILITY No options can be promulgated until competent and independent advice is sought in evaluating the consultants' report (Coffey & Partners Pty. Ltd., 1988) and recommenda tions, in deciding what changes (if any) should be made to the Regional Strategy Plan and in considering any further actions which may be required (see section 15.4.3). Such advice should include: • an examination of the study's implications for the Regional Strategy Plan's policies for land use and development on steep slopes; • comment as to whether further mapping of Medium and High Risk areas is· war ranted, and if so, how this could be done; and • comment as to whether a referral body is needed on matters of slope instability - either on an on-going or as needed basis - and if so, how that need might be met. Arising from consideration of the information and conclusions reached in the consultants' study, and of any expert and independent advice received, changes to the Regional Strategy Plan's policies for slope instability may be warranted. 119 16.0 SPECIAL STUDY AREAS. 16.1 INTRODUCTION The Regional Strategy Plan ( 1982) recognizes areas throughout the Region which, for a variety of reasons, have developmental problems. These problems may include flood, fire or erosion hazard, environmental sensitivity and inadequate or impossible service. provi sion. These "Special Study Areas" are delineated in map form, and relevant policies can be found in Chapter 1O of the Regional Strategy Plan ( 1982). A number of techniques are identified by which management of these areas can be accomplished. One technique is buy-back, wherein the Government (for the most part, the Department of Conservation, Forests and Lands) purchases the land which is then incorporated into public ownership. This purchase can be by negotiation with the owners of the land or by compulsory acquisition. A second technique is by the preparation and implementation of a restructure plan or management plan. Ownership details, physical constraints of the land and availability of services are considered in order to create a more appropriate configuration of allotments or define a specified level of development. The intent is to minimise the contraints of development and the adverse affects of such developments. The Regional Strategy Plan requires that for each identified Special Study Area, develop ment is deferred until such times as a management programme is prepared using any of the above techniques, or other similar form of control. All development is to be prohibited in Special Study Areas unless it is in conformity with the management programme prepared for the area. (P10.05 &P10.07) Chapter 11 of the Regional Strategy Plan relates to Fire Management. Pol icy 11.08 states _ that development within "fire buffer zones" shall be strictly controlled. The "fire buffer zones" are identified on the Special Study Area Map Series. The Special Study Area policies take into account fire management controls. 16.2 LOCAL PLANNING SCHEMES The four Councils in the Region, acting as 'planning authorities', are required to prepare management programmes for the Special Study areas. These management programmes must then be referred to the Authority to ensure their 'conformity' with the Regional Strategy Plan (P10.06). The Shires have used different methods by which to incorporate these management programmes into their local planning schemes. 16.2.1 SHIRE OF HEALESVILLE The Shire of Healesville has designated a Deferred Development Zone and a Manan gement Plan Zone, with associated controlling conditions. All land which is included in a Special Study Area, or any other land subsequently included, is automatically designated to be within a Deferred Development Zone until such times as a management programme is adopted. Within a Deferred Development Zone, the majority of uses (particularly houses and other buildings) are prohibited until such times as a management plan is prepared, and the Planning Scheme amended to include a Management Plan Zone, through which a permit for development may be issued. 121 ------16.2.2 SHIRE OF LILL YDALE The Shire of Lillydale has incorporated a Restructure Zone into its Planning Scheme. The zone allows for limited residential development within old and inappropriate subdivi sions. Any development within a Restructure Zone must be in accordance with the designated Restructure Plan set out in the Planning Scheme. Identified restructure lots must be consolidated into a single title prior to the commencement of buildings or works. Detailed site and building plans are required before commencement of works. 16.2.3 SHIRE OF SHERBROOKE The Shire of She~brooke has two categories of restructure zones: Rural (Restructure) and Residential (Restructure). There are 15 designated Rural areas and 82 designated Resi dential areas. They include all those areas identified in the Regional Strategy Plan as well as additional areas. In many cases the restructure includes road closures. Within the Restructure Zones, development may not occur unless it is in conformity with the 'restructure plan' which forms part of the Planning Scheme. 16.2.4 SHIRE OF UPPER YARRA The Shire of Upper Yarra has two restructure zones, being Restructure Residential 1 and 2. For each of the 31 identified Restructure Areas, a management plan has been prepared by the Responsible Authority, which uses the restructure plan technique. Five areas have total development prohibitions. 16.3 GENERAL COMMENTS Generally speaking, the Special Study Area policies have been properly implemented. The Councils have all instituted "restructure" zonings of one form or another and the processing of development proposals within those zones is now largely one of a matter of course. With the covering of these Special Study Areas with "restructure" zones, the pressure exerted by the planning appeals process has been removed (the Administrative Appeals Tribunal having to make their decisions based on the approved restructure plan). The affected landowners (even given the imposition upon them) now have a legitimate and certain basis upon which to make arrangements with adjoining landowners so as to bring about a restructure where the lands involved are not in common ownership. There is now a guarrantee of a planning permit if a consolidation/restructure is brought about in line with the approved 'restructure plan'. An area of some recent concern, both with the Councils involved and with the Authority, is the manner in which the Government 'buy-back' programme is being administered. The Regional Strategy Plan (at the insistence of the then Ministry for Conservation) included a policy which prohibited any development on those lands in the Special Study Areas which were identified as "Fire Buffer Zones" (These areas were in fact the 'buy-back' areas). Recently, problems have arisen with these areas (particularly within the Shire of Sher brooke) where the Councils are being asked to constrain (prohibit) development of houses, without the obvious designation of either a 'restructure' plan or a Public Open Space Reservation. The Department of Conservation Forests and Lands is arguing that, as when the Regional Strategy Plan was approved, it cannot afford the land to be identified 122 as 'buy-back'. The Department is also arguing in effect, that such identification need not occur as these lands are unsuitable for the development of houses, notwithstanding the recognition of "Fire Buffer Zones" given by the Regional Strategy Plan. A solution to the above problem has been put forward to the Department of Conservation Forests and Lands (now the administrator of the 'buy-back' programme), in the form of a clause that would cover both financial fears and the need to meet the 'prohibition' requirements of the Regional Strategy Plan. To date there has been no response from that Department. The Shires have a concern with the time delay in changing the 'restructure plans', particularly for minor boundary adjustments. However there is a price to be paid for greater flexibility (that is changes without the need to go through an amending planning scheme): there is less certainty and control over the manner in which the restructure is carried out. If the 'restructure plan' is not in the planning scheme and can be changed by Council action outside the planning scheme, then that action/change will be challengable through the Administrative Appeals Tribunal. The final concern raised by the Shires, is that of the level and timing of the Authority's involvement in the 'restructure plan' preparation and approval process. At the moment the adopted plans have to be "approved" by the Authority, which then later has the opportunity to consider the proposed scheme in an Amendment. It is probably only necessary for the Authority to have. an involvement in the original designation of Special Study Areas and in the consideration of the prososed 'restructure plan' at the amending planning scheme stage. This would require a set of performance standards against which the amending planning scheme could be assessed· for confor mity with the Regional Strategy Plan. ' 123 SPECIAL STUDY AREA OPTIONS. The situation existing with the Special Study Area programmes does not warrant the putting forward of policy options at this time. There is, however, a need for consideration •. to be given to a number of matters relating to implementation of the Special Study Area policies of the Regional Strategy Plan, in particular with respect to the following. • What should happen (in the way of zonings and planning controls) when the restructure programmes are completed? • The need to address concerns at having 'restructure' programmes as part of the planning schemes, and the inherent delays when changes to the programmes are sought. • The problems associated with the Government's 'buy-back' programme, particularly with respect to the manner in which these areas are addressed in the planning schemes and to funding difficulties. e Consideration of the on-going role of the Authority in the Special Study Area programmes, in particular that its role should only be one of initial identification and approval of 'restructure' programmes. This would seem the most appropriate future role for the Authority. · 124 17 .0 IDENTIFICATION OF THE EXTENT OF IMPLEMENTATION OF EXISTING POLICIES OF THE REGIONAL STRATEGY PLAN 17 .1 INTRODUCTION As part of its Re-investigation of the Region, the Authority sought to establish the extent of the implementation of policies in the Regional Strategy Plan 1982 and to determine more appropriate mechanisms for future implementation of any reviewed policies. 17.2 BACKGROUND TO AUTHORITY'S ACT REQUIREMENTS: At the time of the Regional Strategy Plan's approval in October 1982 the Upper Yarra Valley & Dandenong Ranges Authority Act 1976 (the Authority's Act) provided directly for the implementation of the Regional Strategy Plan. That implementation was through Section 23, for "planning scheme" matters and through Section 25, for "public works". In essence, Section 23 required that on approval of the Regional Strategy Plan, the four Councils in the Region were to "forthwith" commence to prepare planning schemes that were to "conform with and implement the Regional Strategy Plan." Section 25, which dealt with the works and undertakings of "public authorities", required that; "no government department, public authority or council of a municipality shall carry out any works or undertakings in the area which are not in conformity with the approved Regional Strategy Plan." Together, these two Sections provided for the implementation of the Regional Strategy Plan, however both Sections and/or their implementation have been found to have major short-comings, as is evidenced by the elapsing of some 6 years without the final approval of an "implementing" planning scheme for any of the four Shires. Section 23 assumes that there is both the desire and the resources to implement the Regional Strategy Plan, on the part of the constituent Councils in the Region. One of the great impediments to the "forthwith" implementation of the Strategy, has been the lack of resources (particularly in qualified staff) in the Municipalities. 17.3 IMPLEMENTATION GROUP Prior to the approval of the Regional Strategy Plan (in October 1982), the Authority, in association with the four Councils in the Region and the then Ministry for Planning, established an officer-level Working Group to provide assistance to the Shires in the implementation process. The Group met regularly over a 2 year period, following approval of the Strategy and, amongst other achievements, produced a "Model" Planning Scheme which demonstrated the minimum controls necessary to implement the Regional Strategy Plan. 17.4 BACKGROUND TO 'IMPLEMENTING' PLANNING SCHEMES After the Regional Strategy Plan was approved, in 1982, the four Shires in the Region proceeded to prepare totally new planning schemes. These new schemes were generally 125 based on the "model" planning scheme prepared by the Regional Strategy Plan Im plementation Technical Group. However, the method of bringing about the changes differed from Shire to Shire. The Shires of Sherbrooke and Healesville prepared new planning schemes for exhibition and then sought approval from the Minister for Planning and Environment to have these proposed planning schemes approved as Interim Development Orders (planning docu ments which could be readily approved and operated whilst the actual planning schemes were in the process of being exhibited and approved). This method, and request for l.D.0.'s, was agreed to by the Minister, with there being no public exhibition required for the l.D.0.'s as they were seeking to implement the Regional Strategy Plan (which itself had been exhibited for 5 months). The Shire of Lillydale sought to present its new planning scheme, which implemented the Regional Strategy Plan, by way of an amendment to the Shire of Lillydale Planning Scheme 1958. This amendment, Amendment 205 (later to be adopted under the Planning and Environment Act 1987 as Amendment L31 ), was in effect a total replacement of the existing planning scheme. Amendment L31 was APPROVED on the 30th March 1989 and is the first 'implementing' planning scheme to be finally approved. As with ttie Shire of Lillydale, the Shire of Upper Yarra resolved to exhibit a whole new planning scheme, without seeking the protection of an Interim Development Order. All of the Shires were affected by the introduction of the Planning and Environment Act in February 1988 and have planning schemes (commonly known as "Day One" planning schemes) made under that Act. In the case of the Shires of Sherbrooke, Upper Yarra and Healesville, their Interim Development Orders were made into planning schemes, whilst in Lillyd.ale the existing scheme was just approved under the P & E. Act 1987. All schemes had "sunset" clauses (lapsing on the 31st December 1988) inserted to ensure the continued implementation of the Regional Strategy Plan. Those "sunset" clauses were subsequently extended by the Minister, until the 31 March 1989 in the case of Lillydale and until the 30 June 1989 in the case of the other three Shires. As stated above, Amendment L31 for the Lillydale Planning Scheme has now been approved. 17 .5 PROBLE;MS IN IMPLEMENTATION A major impediment to the implementation of the Regional Strategy Plan appears to ·have been the question of "ownership" once it was approved. The Authority prepared, exhib ited and had approved, the Regional Strategy Plan, but was given no role (by its Act) in its implementation, other than the monitoring of adopted planning schemes and amend ments, for their conformity with the policies and actions contained within the Regional Strategy Plan. This question is less likely .to arise in the future as the Planning and Environment Act provides the Authority with the avenue to itself implement the Regional Strategy Plan (or subsequent amendments). It can do this through the use of its "planning authority" powers to prepare· amendments to both the regional section and the local section of the Region's planning schemes. Problems with the implementation of the Regional Strategy Plan are often based on the lack of support for, or understanding of, the policy sought to be implemented. Sometimes this lack of understanding can be directed to the expression of the policy or action in the Regional Strategy Plan, whilst otherwise it may be a basic flaw related to the available information/guidelines which determine the manner in which the policy/action needs to be implemented. 126 By its high level of detail, particularly in the directions contained in many of the action statements, the Regional Strategy Plan has in the six years since approval been given a 'de facto' implementation through the "Matters" of Regional Significance Specification ( those uses and developments required to be referred to the Authority ) as if it were a planning scheme. Therefore, the interpretation of the Strategy Plan has often been finalized by the Planning Division of the Administrative Appeals Tribunal (and before it, the Planning Appeals Board) rather than by the Authority, as intended. The lack of implementation of those policies in the Regional Strategy Plan which impose a greater or more restrictive control than the 'local' planning controls, has resulted in much conflict. It has been common for the Authority to have to defend its Strategy Plan before the Appeals Tribunal, in the face of a combined Council - Applicant support for a proposal that would not be permitted had the Regional Strategy Plan been implemented. This has been particularly so in the areas of retail and commercial developments, rural subdivision and "tenement" control appeals. 17.6 COUNCILS' RESPONSE TO STUDY BRIEF At the commencement of the study into the 'Identification of the Extent of Implementation of Existing Policies of the Regional Strategy Plan', each of the four Councils in the Region were sent a copy of the study brief and their comments sought on the matters to be investigated. The following summary outlines the issues raised by the Councils that responded to the request for comments. 17.6.1 SHIRE OF SHERBROOKE Lack of resources has been the main reason why Council has not implemented all the policies in the Regional Strategy Plan. The Authority should recognize these limited resources. 17.6.2 SHIRE OF LILLYDALE The majority of the comments made by the Shire of Lillydale relate to specific issues or pol.icies and are addressed in other 're-investigation' reports dealing with those matters. • "Tenement" policies are difficult to administer, because of changes in ownership and the assumption of most buyers , that a title to land automatically enables construction of a house. • Problems of interpretations, in the "tenement" controls, where existing houses are burnt down or otherwise destroyed. ..,. • Better delineations of the Sites of Botanical and Zoological Significance are re quired, to make management of the areas more relevant. · · 17.7 GENERAL COMMENTS ON SPECIFIC IMPLEMENTATION PROBLEMS To a large degree, many of the specific implementation problems can be traced back to the manner in which policies or actions are prescribed in the Regional Strategy Plan. Problems of both interpretation and application have arisen this way. The "tenement" and subdivision policies (particularly those for transfers and consolida tions) and those for retail and commercial centres have presented the greatest conflicts. A number of problems with implementation of the "tenement" controls relate to the complexity of ownership options that can exist. There is no clear and easy way (other 127 than by an entry on the Title) of ensuring that changes in ownership carry advice regarding the effect of any "tenement" control that may exist. Many parts of tenements have changed ownership in the years since approval of the Strategy Plan, without these new owners being aware of the incoming controls (through the implementation of the Regional Strategy Plan). Because these controls often do not yet exist in the local planning schemes, Council staff are often not informing prospective purchasers of the impending introduction of "tenement" controls that may inhibit building on the land these people intend buying. There are other problems with the "tenement" control, some of which are more of an interpretation or policy definition nature. The Regional Strategy Plan introduced, for Retail and Commercial Centres, the concept of Overall Plans of Development (0.P.D.'s). Whilst in principle these 0.P.D's are soundly based, giving direction and forward planning to commercial centres, the implementation has generally been unsuccessful. The major problem stems from two requirements: • the need to produce an O.P.D. for each and every centre in the municipality; and • the level of detail to be supplied with each 0.P.D., including consultation with land owners and the preparation, exhibition and approval of amending planning schemes. Because none of the Shires have had the resources to do all of this work, few O.P.D.'s have been produced, agreed to and implemented. The commercial centre "hierarchy" policies of the Strategy Plan, which rely on the O.P.D's for implementation, have largely been interpreted and applied (if indeed they have been applied) through actions at the Appeals Tribunal. If the "hierarchy" approach to the control of commercial centres is to continue, then a different planning control mechanism must be found: a control mecha nism that allows for immediate application. 17.8 PUBLIC LAND I AGENCY IMPLEMENTATION Section 25 of the Authority's Act (as detailed in Section 17.2) applies to the "works and undertakings" of public authorities, Government departments and Councils, carried out in the Region. · Most of the works and undertakings proposed by agencies are "self monitoring" by those agencies carrying out the works. The Act only requires that the works or undertakings be in conformity with the Regional Strategy· Plan. In practice, most agencies or Councils forward proposals to the Authority and seek its agreement that those proposals are in conformity with the Regional Strategy Plan. Notwithstanding this general approach, there are specific policies/actions in the Strategy Plan which require referral of certain specified works or undertakings to the Authority for its agreement. The 'direct referral' policies for 'public agency' works and undertakings have generally been satisfied, with most agencies being aware of their responsibilities under the Act. In fact some agencies forward more than is required, on the basis that it is more internally efficient (and safer) to refer all proposals than to have prescribed those which need referral and those which do not. However at times operational sections of some agencies have not been informed of requirements of the Regional Strategy Plan. Far less referral/consultation with the Authority has occurred with those policies which require an agency to "have regard to", or be "encouraged to" do certain things, or required to prepare guidelines or management plans. 128 An area of conflict in implementation of the Regional Strategy Plan by 'public agencies', certainly in terms of public perception, is the different manner in which policies are directed towards "public" and "private" activities. Many of the policies directed towards the use and development of "private" land are. not applied to similar activities on "public" land (or carried out by public authorities). This difference, whether real or apparent, has its most significant impact in areas where development on private land is prohibited by •· planning controls, for example clearing vegetation adjacent to a watercourse or develop ing "land liable to flooding". Consideration should be given to making policies applicable to activities, not to the person or organisation carrying them out or the owner of the land where they are carried out. It needs to be recognised however, that some public works are located by necessity and cannot often be located by desirable criteria ( for example, public buildings and roads on "land liable to flooding"). 17.9 REFERRAL MATTERS In both areas of referral, that is through the planning schemes (Section 23 of the Authority's Act) and for 'public agency' works and undertakings (Section 25), there is a need to re-assess those "matters" that require referral to the Authority. At present ·-many activities which should be referred, are not being referred, and vice versa. It is clear that there is a need to review particularly the referrals for works and undertakings of public authorities. The "self monitoring" functions in the Act have caused problems for agencies dealing with the Regional Strategy Plan, to the extent of not knowing if and when they must refer works and undertakings. Any review must clarify this situation and it may best be achieved by having a listing in the Regional Strategy Plan similar to the referral listing for permits. 17.10 PLANNING AND ENVIRONMENT ACT On the 16th February 1988 the Planning and Environment Act 1987 .was proclaimed and came into force. This Act replaced the then Town and Country Plar:ining Act 1961 .and repealed sections of the Authority's Act, in particular those sections relating to planning schemes and implementing the Regional Strategy Plan. Probably the most significant change to the Authority's Act has been the change in the manner of "implementation" of the Regional Strategy Plan. Prior to February 1988, the Authority's Act placed the responsibility of implementation with the Councils (as the Responsible Authority). The Authority is now a "planning authority", under the Planning and Environment Act and is able (is expected to) to implement its Qwn Regional policies. It can do this through either the "regional section" or the "local section" of the Region's planning schemes, by the preparation and exhibition of amendments. For this reason, any review of the Regional Strategy Plan will have to be expressed in a different form. 17 .11 RECOMMENDED STRUCTURE OF AMENDING REGIONAL STRATEGY PLAN The following recommendations are made with respect to the documentation and process for the amendment which will bring about the review of the Regional Strategy Plan. 1. The objective should be to produce a document which. represents the policies that the Authority is putting forward, for the time frame stated. It should be a replace- 129 ment document, not a series of amendments to the existing one. The new document may ( most probably will ) carry through many existing policies, which the Authority deems still appropriate. 2. The format of any amending ( replacement ) document should include; • the REGIONAL STRATEGY PLAN, in it's amended form; • a proposed "amendment" for the REGIONAL SECTION of all the planning schemes in the Region, to bring about the implementation of the ·amended Regional Strategy Plan in so far as it may be implemented via a planning scheme; and • a series of "amendments" ( if required ) to the LOCAL SECTION of each of the four planning schemes in the· Region. This amendment would desirably be carried out with the agreement of the Councils and could be done concurrently with the _exhibition of the other two parts. If the earlier parts of the 'review' process are co-ordinated properly it would be possible for the above three components to be put through the 'statutory' processes of exhibition, review (that is considered by a Panel) and approval, as one document. The benefit of such a process would be that the amending Regional Strategy Plan would be imple mented as soon as it was approved. The use of 'performance standards', similar in concept to those being put forward in the Government's proposed " Residential Development Provisions" (i.e. each policy having a suggested performance standard, from which a Planning/Responsible Authority may only deviate when it demonstrates to the Authority that it's implementing provisions meet the objectives of the Regipnal Strategy Plan policy) should be considered. The use of the 'regional' and 'local' sections for implementation will mean that the Regional Strategy Plan need only contain QQ!lfY matters for the Region. From a practica ble point of view, there is no reason why the format of the Regional Strategy Plan needs to be changed. For ease of transition it may in fact help to have the same general layout of 'land use' and 'ac"tivity' policies. With the exemption available under Section 16 of the Planning and Environment Act 1987, which allows a Government Department to bypass the planning system, it may be desirable to make much more of those 'matters' that Government Departments, Public Authorities and Councils must satisfy to ensure conformity with the Regional Strategy Plan. This could be done by either having a whole section devoted to 'works and undertakings' or by der:10ting for each policy the 'public body' implementation require- ment. · 17.12 CONCLUSION Given the present state of 'implementation', and the Minister's commitment to having that process concluded expeditiously, there is little point in seeking changes to the present 'processes' for implementation. There will however, be a need to closely monitor changes to the Regional Strategy Plan and be aware of the requirements of implementation of those policies. 17.3 REFERENCES • Upper Yarra Valley and Dandenong Ranges Authority (February 1989) A Report on the Extent of Implementation of the Regional Strategy Plan 130 IMPLEMENTATION OPTIONS. The options following from the "identification of the extent of implementation of existing policies in the Regional Strategy Plan" are related mainly to process matters and the manner in which the review of the Regional Strategy Plan should be carried out. There is a need to recognise that the greatest impact on the implementation of any reviewed Regional Strategy Plan is likely to come from the effects of the Planning and Environment Act 1987 and in particular from the changes that Act made to the Authority's Act. Review Document Options: In preparing an amendment to the Regional Strategy Plan, which may follow on from the re-investigation of the Region, the following options are available. 1. Present the amendments to the Regional Strategy Plan as 'corrections' to the present document, without changing the structure or recognising its state of implemen,tation. This option would entail a concurrent exhibition of an amendment to both the 'regional' section and the 'local' section of the planning schemes in the Region. 2. Prepare and exhibit an amendment to the Regional Strategy Plan, which would be re-written to recognise both the new policies being put forward and the ensuing 'regional' section implementation. The 'regional' section amendment would be an integral part of the Regional Strategy Plan and would be exhibited as P.cirt (although under the Planning and Environment Act) of the amending Regional Strategy Plan. Amendments to the 'local' section would follow the above and, with the agreement of the Councils, could be exhibited concurrently. The second option will, firstly, give the shortest path to an ·approved and implemented amending Regional Strategy Plan. Secondly, it will result in a document that is current to the policies being expressed by the Authority for the future of the Region and· is in a format which is in keeping with the new legislative base for implementing regional policies. It should be pointed out that, unlike the present Regional Strategy Plan, implementation through the 'regional' sections of planning schemes will only apply to actions of Councils acting as planning authorities (for example, they will be ·matters that must be considered when an amendment to the detailed local· section of a planning scheme is being prepared). Actions required to be applied directly into planning schemes, or for the consideration of permits (such as subdivision minimums) will occur through amendments to the 'local' section of planning schemes. 131 BIBLIOGRAPHY Australian Bureau of Statistics Small Area Data, 1986, 1981, 1976 Coffey & Partners Pty. Ltd. ( 1988) Upper Yarra Valley and Dandenong Ranges Authority - Landslip and Subsidence Risk Study - Prepared for Upper Yarra Valley and Dandenong Ranges Authority Department of Conservation Forests and Lands, Melbourne Region and National Parks and Wildlife Division ( 1988) Warrandyte State Park Draft Management Plan, August 1988 - Department of Con servation Forests and Lands, Victoria Department of Conservation Forests and Lands in conjunction with Upper Yarra Valley and Dandenong Ranges Authority ( 1988) Lilydale-Warburton Railway Reserve Recreat~on Management Plan. 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