Inverleigh Structure Plan 2019

Home , City of Geelong, Golden Plains Shire, Shire of Bannockburn

AMENDMENT C87gpla

GOLDEN PLAINS PLANNING SCHEME

Part A Submission to the Independent Panel

Panel: Con Tsotsoros (Chair), Sally Conway

Circulated: 16th March, 2020

Panel Hearing Date: 24th March – 2 April 2020

Prepared by: Golden Plains Shire Council

Table of Contents

PART A ...... 7 BACKGROUND TO THE AMENDMENT AND CHRONOLOGY ...... 7 Introduction ...... 7 Summary of the Amendment...... 7 Subject Land and Surrounds ...... 9 List of Reports which Support the Amendment ...... 10 Inverleigh Structure Plan 2019 ...... 11 Chronology – Inverleigh Structure Plan 2019 ...... 17 Chronology – Amendment C87gpla ...... 18 Council resolutions to prepare and exhibit ...... 18 Ministerial Authorisation ...... 19 Public Exhibition ...... 20 Submissions Received ...... 20 Council resolution regarding submissions ...... 21 STRATEGIC CONTEXT AND ASSESSMENT ...... 21 Historical context of settlement planning in Golden Plains – south east ...... 21 RELEVANT STRATEGIC MATTERS, UPDATES AND AMENDMENTS ...... 26 Planning Policy Framework Translation ...... 26 Amendment C80 Flood Study ...... 26 Amendment C74 and Amendment C75pt1 ...... 27 Bushfire Planning ...... 28 Development Feasibility Study Package – Investigation Area in the Township of Inverleigh ...... 29 ASSESSMENT OF THE STRATEGIC BASIS FOR THE AMENDMENT ...... 30 Strategic Assessment ...... 30 State Policy ...... 30 Regional Policy ...... 34 Local Policy...... 34 Environmental Effects ...... 37 Social and Economic Effects...... 37 Ministerial Directions ...... 38 Inverleigh Framework Plan ...... 38

PANEL DIRECTIONS ...... 39 Alignment of population and housing growth between the Inverleigh Structure Plan and the G21 Regional Growth Plan and other any other similar documents ...... 39 Farming Zone within the Settlement Boundary ...... 45 Low Density Residential Zone Schedule 1 – Tracked Change version and Clean version . 46 Potential Lot Yield ...... 47 SUMMARY OF MAIN ISSUES RASIED IN SUBMISSIONS ...... 48 PROCESS TO CONSIDER CHANGES TO THE STRUCTURE PLAN & FRAMEWORK PLAN ..... 50

List of Figures

Figure 1: Land affected by Amendment C87gpla

Figure 2: Subject land and surrounds

Figure 3: Potential growth areas

Figure 4: Cnr Mahers Road & Hamilton Highway, Inverleigh Structure Plan 2005

Figure 5: Cnr Mahers Road & Hamilton Highway, Inverleigh Framework Plan

Figure 6: Option for additional Rural Industry on Winchelsea Road, Inverleigh

Figure 7: Winchelsea Road, Inverleigh Framework Plan

Figure 8: Depiction of future Low Density Residential, south of Common Road adjoining Leigh River, Inverleigh Structure Plan 2005

Figure 9: Depiction of future Low Density Residential, south of Common Road adjoining Leigh River, Inverleigh Framework Plan

Figure 10: Location of submitters to Amendment C87gpla (within Inverleigh)

Figure 11: Geelong Region from the Geelong Regional Commissions Geelong Region Development Strategy, 1988

Figure 12: G21 Regional Growth Plan – identified planned growth

Figure 13: Inverleigh Framework Plan

Figure 14: Identified Planned Growth, as provided in Figure 3.4 of the G21 Regional Growth Plan

Figure 15: Greenfield and Infill Land Supply, as provided in Table 3.1 of the G21 Regional Growth Plan Background Report, August 2012

Figure 16: Population forecast summary across Golden Plains Shire, id Consulting, November 2017

Figure 17: Potential Lot Yield, at a minimum lot size of 0.4ha applied to proposed LDRZ areas, including the recently rezoned land at Hopes Plains Road and Common Road (Planning Permit P19-008) as the Future Investigation Area.

Figure 18: Potential Lot Yield, consistent with existing policy expressed in Figure 21.07- 5A Inverleigh Structure Plan, for proposed LDRZ areas, including the recently rezoned land at Hopes Plains Road and Common Road (Planning Permit P19- 008) as well as the Future Investigation Area.

List of Attachments

Attachment A: Inverleigh Town Structure Plan, 1996 Attachment B: Inverleigh Structure Plan, 1985 Attachment C: Inverleigh Structure Plan Review, 2005 Attachment D: Regional Growth Plan Background Report 2012 & Regional Growth Plan, 2013 Attachment E: Letter from GPSC CEO to Minister for Planning regarding PPF Translation, 2019 Attachment F: Strategic Bushfire Risk Assessment, 2018 Attachment G: Development Plan DP-048, 2019

PART A BACKGROUND TO THE AMENDMENT AND CHRONOLOGY

Introduction 1. This Part A submission has been prepared on behalf of Golden Plains Shire Council (“Council”) as the Planning Authority for Amendment C87gpla to the Golden Plains Planning Scheme.

2. This submission: • Provides a summary of Amendment C87 (“the Amendment”) to the Golden Plains Planning Scheme, the subject land and its surrounds; • Lists the reports which support the amendment; • Provides background to the Amendment and a chronology of events; • Provides the strategic context and assessment for the amendment; • Provides a summary of the issues raised in submissions and Council’s response; • Details proposed changes to the Amendment documentation since exhibition; and • Provides a list of attachments.

Summary of the Amendment 3. Golden Plains Planning Scheme Amendment C87 (the Amendment) is a Council initiated amendment. The amendment implements key land use directions from the Inverleigh Structure Plan (2019).

4. The amendment affects land within the settlement boundary of Inverleigh as shown within Figure 1 below.

Figure 1 Land Affected by Amendment C87

5. Outside of Inverleigh, the Amendment also has a minor policy neutral impact on all land zoned “Low Density Residential Zone” in the Shire.

6. The Amendment proposes to: • Amend Sub Clause 21.07-5 (Inverleigh) to be in accordance with content derived from the Inverleigh Structure Plan (Golden Plains Shire, 2019) including:

o Removing superfluous and out of date content; o Replacing Figure 21.07-5A Inverleigh Structure Plan with the Inverleigh Framework Plan.

• Replace the “Schedule to Clause 32.03 Low Density Residential Zone” with “Schedule 1 to the Low Density Residential Zone”. The new Schedule 1 deletes the Inverleigh Structure Plan (2005 version) and as a result deletes reference to minimum lot size restrictions for Inverleigh, thereby defaulting to the minimum lot size prescribed under the zone. The title includes reference to the number 1, in accordance with Ministerial Direction on Form and Content of Planning Schemes.

• Updates the Low Density Residential Zone Planning Scheme maps so that the maps now read “Low Density Residential Zone Schedule 1” instead of “Low Density Residential Zone”. These maps will continue to apply to the same location.

Subject Land and Surrounds 7. In the Panel Report, dated January 2009 for Amendment C37 Inverleigh Structure Plan (2005), Panel Members Esther Kay and Fiona Costall described Inverleigh as “a pretty town which offers a rural setting and lifestyle, and the desire to maintain this key attribute underpins the direction of the Structure Plan”. The Inverleigh Structure Plan 2019 seeks to sustain this direction.

8. Inverleigh is one of a number of small townships in the Golden Plains Shire. It is situated at the junction of the Barwon and Leigh Rivers and is bisected east-west by the Hamilton Highway. Inverleigh is located approximately 30 kilometres west of Geelong and is one of a cluster of townships, providing a rural township alternative to suburban residential development in the regional city of Geelong.

Figure 2: Subject land and surrounds

9. Inverleigh’s traditional ‘old town’ centres on the Hamilton Highway and is typical of small Victorian towns settled in the 19th century. There are substantial buildings of heritage value as well as a variety of architectural styles reflecting later periods of growth. The small business district is located along the highway and there are some limited industry and services present in the town as well as community and recreation facilities. The railway runs east-west on the southern side of the Highway. A significant amount of land in the vicinity of the river is subject to flooding, including much of the ‘old town’. The ‘old town’ area comprises a grid layout with lots typically between 1000 – 2000 sqm.

10. Rural living development has occurred primarily north of the Leigh River escarpment. Lots here are typically around 1 hectare in size and can be characterized as low density housing. The most recent rezoning to Low Density Residential Zone on Common Road (Amendment C75) is subject to the default minimum lot size prescribed under the zone. There are other rural living areas with larger lot sizes on the southern and western side of the town, these are zoned Farming. The Barwon River floodplain is located to the south.

11. Immediately north of the township is the Inverleigh Flora Reserve and the Inverleigh Golf Course.

List of Reports which Support the Amendment

• Development Feasibility - Investigation Area in the Township of Inverleigh (Mesh Urban Planning and Design, October 2017) • Inverleigh Structure Plan 2005 • Golden Plains Domestic Wastewater Management Plan 2015 • Golden Plains Shire Rural Land Use Strategy 2008 • G21 Regional Growth Plan (Geelong Regional Growth Alliance, 2013) • Strategic Bushfire Risk Assessment for the Inverleigh Structure Plan, 2018 • Flood Risk Management Study – Leigh and Barwon Rivers at Inverleigh, 2018

Inverleigh Structure Plan 2019

12. The Inverleigh Structure Plan 2019 (ISP 2019) is a strategic document that sets out the vision and future planning framework for the existing and growing township. The ISP 2019 identifies six (6) Potential Growth Areas (PGA’s) on the periphery of the Township Zone (‘old town’), as shown in Figure 3.

Figure 3: Potential Growth Areas

13. The ISP 2019 is based on the Inverleigh Structure Plan Review 2005 and was undertaken to: • Address the limited availability of suitably zoned and un-encumbered residential land in Inverleigh; • Examine suitable lot sizes for the Low Density Residential Zone (LDRZ) • Incorporate relevant findings of the Domestic Wastewater Management Plan 2015; • Integrate the findings of the Inverleigh Flood Study 2018.

14. At the outset of undertaking the ISP 2019, the intention was to retain the same town/ settlement boundary as the 2005 Structure Plan. The footprint of the town’s future growth potential in the ISP 2019 is consistent with the area identified in the 2005 plan.

15. The ISP 2019, recommends, amongst other matters, changes to lot sizes for the existing and proposed LDRZ areas of Inverleigh. It proposes that ISP 2019 does not identify minimum lot sizes and consequently, the minimum lot size will default to the Low Density Residential Zone provisions of 0.4 hectare. The existing minimum lot sizes for the LDRZ areas of Inverleigh range from 0.4 to 4 hectares and are mandated through the schedule to the LDRZ which includes the Inverleigh Structure Plan 2005 with minimum lot sizes identified on the plan. The basis for the minimum lot size recommendations predate the update of local planning policy for Low Density Residential Subdivision at Clause 22.09.

16. The basis for the revised Low Density Residential Subdivision policy in 2013 (Amendment C64) was to present Council’s current policy for considering subdivisions in the Low Density Residential Zone. The Explanatory Report for Amendment C64 states: “The amendment revises the existing local planning policy at Clause 22.09 and removes stipulation discouraging lot sizes below 1.0 hectare in the low density residential zone. The amendment will introduce a performance based approach to guide development with appropriate lot sizes in the low density residential zone”

17. Since the Inverleigh Structure Plan 2005 (ISP 2005), growth in Inverleigh has been faster than anticipated. The ISP 2005 anticipated a population of 962 by 2021 (page 23). The population at 2017 was already 1,203 persons, 240 more than what was expected 4 years later. The current population growth rate according to ID profile is approximately 4.3%. It is recognized that if the minimum lot sizes based on the 2005 Structure Plan was implemented into the future then full development potential of the growth areas within the town would be quickly realized, with a relatively small population over a large area.

18. The ISP 2019 has been developed with a view to accommodating population growth efficiently, whilst avoiding unnecessary sprawl and distance between residential areas, commercial area and community infrastructure. The 0.4 hectare minimum lot size also conforms to the minimum lot size supported by the Golden Plains Domestic Wastewater Management Plan 2015 (page 13).

19. The areas identified for future residential development are referred to as Potential Growth Areas (PGA’s) in the ISP 2019. The ISP 2019 supports future low density residential development at a minimum lot size of 0.4 hectares across 5 Potential Growth Areas. Potential Growth Area 6 is supported for future investigation without a nominated zone or minimum lot size.

Potential Growth Area 1 and 4

20. These areas comprise 147 hectares and are located on the eastern boundary of the township. The land is zoned Farming zone. Most of the land is used for rural living purposes, with a section in PGA 1, used for farming.

Potential Growth Area 2

21. This area comprises 47 ha and was recently rezoned from Farming Zone to Low Density Residential Zone with Development Plan Overlay Schedule 16; Design and Development Overlay Schedule 5 (100%); and part Bushfire Management Overlay.

Potential Growth Area 3

22. This area comprises 180ha (excluding land affected by the Land Subject to Inundation Overlay and Floodway Overlay). The eastern portion (85 ha) is zoned as the Low Density Residential Zone (Amendment C75pt1) and was recently the subject of a development plan approval under DPO15. The land zoned LDRZ and affected by DPO15 will support 137 lots at full development. It is currently in use for grazing. The western portion (95ha) is zoned Farming Zone and is used for grazing.

Potential Growth Area 5

23. This area comprises 38 hectares. It is currently zoned Farming Zone and is in use for rural living purposes. The land has previously been encumbered by the buffer zone of an existing Broiler Farm which ceased operation in 2018.

Potential Growth Area 6

24. This area (proposed for future investigation) comprises approximately 315 hectares. It is zoned Farming Zone and is affected by flooding towards the north and south. It is mostly used for rural living purposes, however a section to the north is being farmed. A Feasibility Study was undertaken in October 2017 to investigate development constraints and options for the site.

25. Modifications from the ISP 2005 include: • The area for “Rural Activities and Industry within a Farming Zone” at the corner of Mahers Road and Hamilton Highway is removed, as well as the area identified ‘Option for Additional Rural Industry’ on Winchelsea Road. The land uses permitted within the Farming Zone are broad and it is believed that the zone can support a wide variety of Rural Activity and Rural Industry without a specific designation in the Structure Plan.

Figure 4: Cnr Mahers Road and Hamilton Figure 5: Cnr Mahers Road and Hamilton Highway, Inverleigh Structure Plan 2005 Highway, Inverleigh Framework Plan Inverleigh

Figure 6: Option for additional Rural Industry Figure 7: Winchelsea Road, Inverleigh on Winchelsea Road, Inverleigh Structure Framework Plan Plan, 2005

Figure 8: Depiction of Future Low Density Figure 9: Depiction of Future Low Density

Residential, south of Common road adjoining Residential, south of Common Road adjoining Leigh River, Inverleigh Structure Plan 2005 the Leigh River, Inverleigh Framework Plan

• The area south of Common Road shown as ‘Proposed Low Density Residential Zone” within the 2019 Framework Plan has been expanded further south, closer to the banks of the Leigh River. See Figures 8 and 9. Not all of this land is developable and much of it is anticipated to become future open space. Ideally the floodplain area should not be identified for Future Low Density Residential Zone and should rather be shaded blue consistent with Flood prone areas south of the river. The likely future zone is Public Conservation

and Resource Zone or Farming Zone consistent with Planning Scheme Amendment C75.

• Potential Growth Area 6 shown in the ISP 2019, was identified in the ISP 2005 as ‘Low Density Residential (1Ha)’ and ‘Future Low Density Residential (4Ha)’ and is identified as ‘Future Investigation Area’ in the ISP 2019. The area now extends further south into areas that are no longer deemed to be flood affected based on the Inverleigh Flood Study (2018).

• Updated Flood Extent based on the Inverleigh Flood Study 2018.

• Removal of reference to ‘Possible location of sewerage treatment plant’. Reference to investigating the potential location and provision of a long-term sewerage treatment plant is made within Section 6 of the ISP 2019 in the table under Infrastructure and Services (page 55).

• Location of Bio-link moved further west along Common Road.

• Identification of the Settlement Boundary as recommended in the Panel Report for Amendment C75 (page 15) where the Panel suggested “A matter that Council should consider in the ISP review is the use of a town boundary to avoid relying on boundaries of future growth areas. This would resolve any ambiguity over the role of a town boundary and that of a future growth area”.

• Greater detail provided on the plan and in the Drawing Key/ Legend of paths, uses and activities.

Chronology – Inverleigh Structure Plan 2019

26. The following table provides a chronology of events for the Inverleigh Structure Plan 2019

Date Event/ Description 2015 Report to Council regarding the need to update the Inverleigh Structure Plan 2005 16 Dec 2016 Surf Coast Shire contacted Feb 2017 Notice in Golden Plains Gazette Feb 2017 Notice in Leigh News 6 Feb – 24 March Inverleigh Structure Plan Survey open (notice mailed to residents), 2017 120 surveys received 4 March 2017 Listening Posts (General Store & Bakehouse) 8 March 2017 Meeting with Principal of Inverleigh Primary School 8 March 2017 Community Workshop – Inverleigh Bowls Club 15 March 2017 Community Groups Workshop @ Inverleigh Bowls Club April - May 2017 Consultation with VicTrack, CFA (M Boatman and W Aylmet); VicRoads (M Hearsch, B Grace); Department of Education (P Devereux) for input on Inverleigh Structure Plan 15 June 2017 RFQs sent to Hill PDA, Mesh and Planisphere for the Development Feasibility Study 22 June 2017 RFQs closed for the Development Feasibility Study 13 July 2017 Mesh appointed – Development Feasibility Study 26 October 2017 Workshop – survey findings 16 June 2018 Listening Posts (Draft Framework Plan) x2 23 June 2018 Councilor Conversation Post (Draft Framework Plan) June – July 2018 Draft Framework Plan published on website, 7 written submissions received August 2018 Consultation with Barwon Water, Transport for Victoria and VicTrack, ID Consultants September 2018 Councilor briefing on Inverleigh Structure Plan

October 2018 Strategic Bushfire Assessment Commenced February 2019 Consultation with Powercor (D Learey), CFA (M Boatman), Barwon Water (R Bennett) 26 March 2019 Council adopted the Inverleigh Structure Plan April 2019 Video published detailing key themes of Inverleigh Structure Plan 8 May 2019 Drop-in session held at Inverleigh Bowls Club June 2019 Consultation with Parks Victoria ongoing Informal consultation with CCMA and DELWP throughout the process

Chronology – Amendment C87gpla

27. The following table provides a chronology of events for Amendment C87gpla

Date Event/ Description 26th March 2019 Council resolution to prepare Amendment 17th July 2019 Council submitted request for authorisation 31st July 2019 Authorisation received from the Minister for Planning 16 Aug – 16 Amendment C87gpla exhibited - 91 submissions received October 2019 26th November Council considered submissions and resolved to refer all 2019 submissions to an independent Panel 28th November Council wrote to Planning Panels Victoria to request Panel 2019 16th January 2020 Directions Hearing held 24th March 2020 Panel Hearing to commence

Council resolutions to prepare and exhibit

28. On 26th March 2019, Council considered a Council officer’s report on the Inverleigh Structure Plan and resolved as follows: That Council: 1. Endorse the Draft Inverleigh Structure Plan.

2. Authorise the preparation and exhibition of the planning scheme amendment which incorporates the new Inverleigh Structure Plan into the Golden Plains Scheme.

Ministerial Authorisation

29. Council officers requested authorisation for the Amendment on 17 July, 2019.

30. The Minister for Planning granted authorisation on 31 July, 2019. The following conditions were also specified and met: • In the Explanatory Report, the title of ‘Amendment C87’ to be ‘Amendment C87gpla must be corrected throughout the document • In the Explanatory Report, a concise description of the amendment must be provided including specifically the effect of the amendment. • Ensure the amendment considers Ministerial Direction 1- Potentially Contaminated Land by addressing whether future areas for development are affected by potentially contaminated land • The Inverleigh Framework Plan in the Inverleigh Structure Plan (Golden Plains, 2019) in Clause 21.07 and in the Schedule to Clause 32.02 Low Density Residential Zone must reflect recently approved amendments in Inverleigh • The final copy of the Inverleigh Structure Plan (Golden Plains Shire, 2019), including attachments, and supporting documents are provided to DELWP prior to exhibition of the amendment • The proposed changes to the Local Planning Policy Framework (LPPF) must be drafted to take into consideration the LPPF translation into the new Planning Policy Framework (PPF) structure as part of the Smart Planning program. • The wording of clause 21.07-5 should be confirmed with DELWP prior to exhibition of the amendment. • The schedule to Clause 32.03 Low Density Residential Zone is in accordance with the Ministerial Direction on the Form and Content of Planning Schemes. Ensure the planning scheme maps also reflect any changes.

• Ensure the Inverleigh Structure Plan (Golden Plains Shire, 2019) must be accurately and consistently referenced through the amendment documents.

Public Exhibition

31. The Amendment was exhibited from 16th August 2019 to the 16th October 2019.

32. Notices were mailed to 762 affected or nearby owners and occupiers of properties in Inverleigh. Letters and emails were sent to prescribed Ministers, and a wide range of government agencies and service authorities during the public exhibition process.

33. The broader community was notified through notices in local newspapers and the Golden Plains website. Notices were published in: The Geelong Advertiser on August 17th, 2019; Golden Plains Times on August 22nd, 2019; The Leigh News October edition.

34. Notice of exhibition of the Amendment was published in the Government Gazette on August 22nd , 2019

Submissions Received

35. A total of 92 submissions were received as part of the public exhibition process. Of these submissions, 17 were in support of the Amendment, and 73 opposing either elements of the amendment or the amendment in its entirety. A further 2 submissions suggest changes to the amendment but neither state support or opposition to the amendment.

36. Late submissions were accepted for consideration until the Council report was completed. The last submission was received on 16th January 2020.

37. The map in Figure 10 shows the location of submitters to the Amendment who are located within Inverleigh (highlighted in red).

Figure 10: Location of submitters to Amendment C87gpla (within Inverleigh)

Council resolution regarding submissions

38. On 26th November 2019 Council considered a Council officer’s report on Amendment C87 Inverleigh Structure Plan – Post Exhibition and resolved as follows:

That Council request the Minister for Planning to appoint a Panel pursuant to Section 23(1)(b) of the Planning and Environment Act 1987 to consider all submissions to amendment C87gpla and make recommendations regarding the amendment.

STRATEGIC CONTEXT AND ASSESSMENT

Historical context of settlement planning in Golden Plains – south east

39. The Geelong Regional Commission provided long term strategic planning direction for an area now covered by the municipalities of Greater Geelong, Surf Coast, Queenscliffe and Golden Plains.

Figure 11: Geelong Region from the Geelong Regional Commission’s Geelong Region Development Strategy, 1988

40. The Geelong region has a history of settlement planning with early structure plans for Inverleigh, prepared by the Geelong Regional Commission and Shire of Bannockburn dating back to 1977 and 1985.

41. The 1985 Revised Inverleigh Structure Plan recognized that while the most appropriately located area for future township growth is immediately west of the township, the zoning for rural residential should be removed in favour of a Rural

General Farming until such time as future urban demand requires the extension of the Township zone. This change in direction was based on the following reasons:

• The area is separated from the existing township by the railway line and in places, a substantial railway reservation; • Direct access to the Hamilton Highway is limited and circuitous, due to the restricted number of crossing points over the railway line; • The area comprises predominantly fully developed rural residential type lots. Consequently, allotments would be expensive to assemble and re-subdivide, making it near impossible to re-subdivide efficiently as individual lots; • The high cost of water seems to have been a major inhibiting factor to the development of the area to date. The likely return from a more intensive township-type development in the future may prove more attractive to the owners than the lower density rural residential development.

42. Key features of the 1977 Structure Plan and the 1985 Structure Plan can be found in the Revised Inverleigh Structure Plan Public Discussion Document, March 1985, prepared by the Geelong Regional Commissions in consultation with the Shire of Bannockburn. See Attachment B.

43. The Golden Plains Shire initiated a Land Use Strategy Plan in February 1996 to examine the strategic planning options for land management in the shire. Part of this included structure plans for fourteen (14) towns to set out the preferred pattern and nature of future use and development. The necessity for the town structure plans emerged following the creation of the Golden Plains Shire and the need for a coordinated approach to the planning for key towns. Several towns had existing structure plans prepared by the former Geelong Regional Commission which were in need of review, whereas for other towns there was no overall plan for their future use and development.

44. The 1996 Inverleigh Town Structure Plan, Golden Plains Shire: Town Structure Plans, was prepared by TBA Planners Pty Ltd and Planning Australia Consultants. The structure plan indicated a preferred layout of residential, commercial, community and other land uses based on a ten (10) year outlook. See Attachment A.

45. The 2005 Inverleigh Structure Plan Review, prepared for Golden Plains Shire by Connell Wagner, March 2005 evaluated the performance of the 1996 Inverleigh Structure Plan, considered emerging themes and issues and provided an analysis of land use patterns and an indication for the future direction and development of Inverleigh. See Attachment C

46. The G21 Regional Growth Plan, April 2013 manages growth and land use pressures to 2050. It blends the strategic land use and growth planning already undertaken across the region including the G21 Geelong Regional Plan, and builds on this to identify where future residential and employment growth will occur.

47. The strategic planning work by G21 Councils has mapped out 20-30 years supply of zoned and strategically identified residential and employment land and provides for a region of 500,000 people.

Figure 12: G21 Regional Growth Plan – Identified Planned Growth

48. The overall Settlement and Employment Growth Directions plan is provided in Map 7 (Pg. 25) from the G21 Regional Growth Plan at Attachment D.

49. The plan indicates that the region’s rural settlements, including Inverleigh, will continue to experience modest growth and play an important tourism and agricultural role to surrounding areas. It also states that “Growth will be limited to identified structure plan settlement boundaries”.

RELEVANT STRATEGIC MATTERS, UPDATES AND AMENDMENTS

Planning Policy Framework Translation

50. The Planning Policy Framework (PPF) translation is underway. The timing of Amendment C87 coincides with the Golden Plains Planning Policy Framework (PPF) Translation process. This will see the size of all local planning policy content within Victorian Planning Schemes (including Golden Plains) extensively reduced in size and inserted into a new area of the Planning Scheme.

51. The Department of Environment, Land, Water and Planning (DELWP) has employed Tract consultants to compete Council’s translation. The consultants have provided Council with a post PPF version of the local policy content. This version has been included within the explanatory report. The PPF version is intended to avoid compromising the intent of Amendment C87 and continues to carry over the Inverleigh Framework Plan. A draft of the translated policy has recently been provided/ agreed to (in the new PPF format).

52. Council’s CEO has provided a letter of support to accompany the amendment, which has been submitted to the Minister for Planning as a 20 (4) amendment. A copy of the letter is provided at Attachment E.

53. Realistic timing would suggest approval and gazettal of the changes would be around mid-2020.

54. Amendment C87gpla has been drafted giving consideration to the new PPF format and will therefore be easily translated.

Amendment C80 Flood Study

55. Amendment C80 was approved in September 2019. It provides new Land Subject to Inundation Overlay (LSIO) and Floodway Overlay (FO) mapping for Inverleigh, as well as new schedules that are specific to Inverleigh. The proposed Inverleigh Framework

Plan under sub clause 21.07-5A includes the same flood mapping as Amendment C80, with depicted growth areas generally avoiding the flood prone areas. The flood mapping is based on the Inverleigh Flood Study (2018).

56. The extent of flood mapping under these Overlays has generally increased compared to before Amendment C80, however there are also decreases in flood mapping in certain parts.

Amendment C74 and Amendment C75pt1

57. Two amendments have recently been approved to rezone land in Inverleigh from the Farming Zone to the Low Density Residential Zone.

58. Amendment C74 applied to a 42 hectare area of land at 230 Hopes Plains Road, Inverleigh. It rezoned land from the Farming Zone to the Low Density Residential Zone, applied the Development Plan Overlay Schedule 16 and the Design and Development Overlay 5. The strategic basis for Amendment C74 was the Inverleigh Structure Plan (2005) where the land was designated for future growth. Amendment C74 was approved in July 2019.

59. At this stage the draft Inverleigh Structure Plan had involved engagement with the community but was not yet finalised. The draft Inverleigh Structure Plan proposed Low Density Residential Zone areas in the new structure plan would default to the State defined minimum lot size of 4000 square metres rather than the 1.0 hectare minimum lot size required by the current Inverleigh Structure Plan 2005.

60. The Panel Report for Amendment C74 concluded that the Inverleigh Structure Plan 2005 and Clause 21.07-5 provide a sound strategic framework for rezoning of the land for rural residential development (p. 12).

61. Amendment C75pt1 applied to an 85 hectare area of land at 385 Common Road, Inverleigh. It rezoned the land from the Farming Zone to the Low Density Residential

Zone, applied the Development Plan Overlay Schedule 15 and the Design and Development Overlay Schedule 5. The strategic basis for Amendment C75pt1 was the Inverleigh Structure Plan 2005, where the land was designated for future growth. Amendment C75 was approved in November 2018. There is no minimum lot size restriction for this land in the Schedule to the Low Density Residential Zone. A Development Plan for 137 future lots was approved in June 2019. Planning Permit P19-008 for subdivision of the land was issued 2nd March 2020. A copy of the Development Plan is provided at Attachment G.

Bushfire Planning

62. The Bushfire Management Overlay applies to the Inverleigh Flora Reserve, the Inverleigh Golf Course and extends approximately 150 metres beyond these sites on all sides.

63. The Bushfire Management Overlay identifies areas where the bushfire hazard warrants bushfire protection measures to be implemented. Development should only be permitted where the risk to life and property from bushfire can be reduced to an acceptable level.

64. Council prepared a Strategic Bushfire Risk Assessment for the Inverleigh Structure Plan (‘Bushfire Assessment’) in 2018. This is provided at Attachment F.

65. The Bushfire Assessment found that the proposals for residential growth in Inverleigh are considered to be appropriate from a bushfire risk perspective provided that measures identified in the report are taken to minimize the risk to residents and emergency services. A moderate risk of impact from woodland and grassland fires exists at these sites, however this can be adequately mitigated in the planning and implementation of development.

66. The Country Fire Authority (CFA) acknowledge that the Bushfire Assessment provides “a realistic assessment of the bushfire risk around Inverleigh”.

67. A peer review of Council’s Bushfire Risk Assessment has been undertaken by XWB Consulting, Town Planning and Bushfire Consultants and found that “The Strategic Bushfire Risk Assessment prepared by Council for the Inverleigh Structure Plan is a sound and reasonable assessment of the bushfire/ grassfire risk to the Inverleigh township”. Golden Plains Shire will call on Expert Evidence on bushfire matters, provided by Philip Walton of XWB Consulting at the Panel Hearing as part of its submission.

68. The Expert Evidence Report provides recommended changes to the Inverleigh Structure Plan which are supported for inclusion.

Development Feasibility Study Package – Investigation Area in the Township of Inverleigh

69. The area west of the Inverleigh township extending to Mahers Road, south of the Hamilton Highway and identified for Low Density Residential (1 ha) in the Inverleigh Structure Plan 2005, was the subject of a Feasibility Study undertaken by Mesh planning consultants, for Council, in 2017.

70. Current lots within the area are diverse ranging from 10,000 square metres up to 110,000 square metres with the majority of lots being 40,000 square metres. Land ownership in the area is highly fragmented making it difficult to coordinate development in an orderly manner. All consolidated land ownerships in the area are significantly encumbered by flood. The remaining developable land is not considered large enough to provide any significant master planned benefit to the area. The study area is also split by the railway line into a north and south precinct.

71. The study indicates that a combination of the 4000 square metre minimum lot size in this area would deliver benefits to the whole of Inverleigh through better connectivity and new public reserves along the Barwon River. It would also be more feasible from an infrastructure funding perspective. This option would provide capacity for 1,370 people, almost doubling the population of Inverleigh.

72. Given the range of constraints and complexities affecting this area, including the fragmentation of ownership and subsequent difficulties associated with funding of necessary infrastructure; together with the implications of flooding, the railway line, the escarpment and interfaces with various land uses, the area was identified as a Future Investigation Area. This may include different approaches to development patterns across different parts of the site.

ASSESSMENT OF THE STRATEGIC BASIS FOR THE AMENDMENT

Strategic Assessment

73. Minister’s Direction No.11 requires a planning authority to evaluate and discuss how an amendment addresses a number of strategic considerations. What should be considered as part of the Direction is explained in the DEWLP Practice Note 46 (May 2917): “Strategic Assessment Guidelines for preparing and evaluating planning scheme amendments.”

74. The exhibited explanatory report includes a Strategic Assessment. This section of this submission is largely based on that Strategic Assessment.

State Policy 75. The Amendment supports and implements state policy on Settlement (Clause 11.01- S). The most relevant strategies that the Amendment supports are discussed below:

76. Clause 11 Settlement - This clause requires planning authorities to plan and respond to the changing needs of communities through providing for zoned and serviced land for housing, employment, recreation and open space, commercial and community facilities and infrastructure.

77. Clause 11.02 Supply of urban land, outlines strategies to ensure sufficient land is available to meet forecast demand and requires plans to accommodate projected

population growth over at least a 15 year period with clear direction on locations where growth should occur.

78. The Amendment supports modest growth of low density scale within the existing Settlement Boundary of the Inverleigh Township. Council policy directs growth to existing townships.

79. Clause 11.02-S Structure Planning seeks to facilitate preparation of structure plans that take into account the strategic and physical context of the location; provide the broad planning framework for an area; provide for sustainable and liveable areas in an integrated manner; assist the development of walkable neighbourhoods; facilitate logical and efficient provision of infrastructure; and facilitate the use of existing infrastructure and services. The Amendment implements the Inverleigh Structure Plan (Golden Plains Shire, 2019) which has been prepared consistent with the strategies outlined in Clause 11.02-S.

80. Clause 11.02-S Sequencing of development seeks to manage the sequence of development in areas of growth so that services are available from early in the life of new communities. The Inverleigh Structure Plan (Golden Plains Shire, 2019) identifies developer responsibilities within Section 7 - Implementation, to facilitate the alignment of servicing with the sequencing of development.

81. Clause 11.03-6S Regional and local places, seeks to facilitate integrated place-based planning. The Inverleigh Structure Plan (Golden Plains Shire, 2019) considers the distinctive characteristics and needs of Inverleigh in planning for its future land use and development.

82. Clause 12 Environmental and Landscape Values, states planning should protect, restore and enhance sites and features of nature conservation, biodiversity, geological or landscape value. Amendment C87gpla is consistent with the broad principles of biodiversity protection and retention of existing native vegetation. This is demonstrated by protecting significant vegetation in open space reserves and in

particular by assisting in the establishment, protection and re-establishment of links between important areas of biodiversity with nomination of a Bio-link to connect the Inverleigh Flora Reserve with the Leigh River environs.

83. Clause 12.03-1S River corridors, waterways, lakes and wetlands, includes strategies to ensure development responds to and respects the significant environmental, conservation, cultural aesthetic, open space, recreation and tourism assets of water bodies and wetlands. Protection of the river environs as part of the Inverleigh township is a strong focus of the Inverleigh Structure Plan (Golden Plains Shire, 2019) and part of the vision for the future. Specific objectives include “To protect the natural landscape, including the Barwon and Leigh rivers and vegetation as fundamental elements of Inverleigh, through residential design and inclusion in open space” and the following strategy: “Require new subdivision to enhance environmental qualities of the waterways through pest and plant control and environmental management”.

84. Clause 13 Environmental Risks and Amenity, broadly focuses on climate change, specifically avoiding natural and human-made environmental hazards as well as preparing and responding to impacts of climate change. The relevant policy considerations include floodplain management and bushfire.

85. Both flooding and bushfire were considered as part of this amendment, Amendment C87gpla incorporates the findings of the Inverleigh Flood Study 2018 and the Strategic Bushfire Risk Assessment for the Inverleigh Structure Plan (Golden Plains Shire, 2019).

86. Clause 14.01-1S Protection of agricultural land, seeks to preserve productive farmland. Strategies included in the Structure Plan which support this policy are: limiting new housing in rural areas by directing new housing growth into existing settlements; maintaining the Settlement Boundary; and providing for new housing growth within the current township boundary.

87. Clause 15 Built Environment and Heritage. This policy holistically considers how planning and development responds to the natural and built environment as well as

heritage factors and ensuring development positively contributes to local character and sense of place. Amendment C87gpla supports this clause.

88. Clause 16 Housing seeks to provide for housing diversity, affordable housing and housing with access to services, activity centres, public transport, schools and open space. There is no public transport in Inverleigh, however Amendment C87gpla seeks to promote a housing market that meets the needs of the community.

89. Clause 17 Economic Development, seeks to encourage development which meets the community’s needs for retail, office and other commercial services. Amendment C87gpla aligns with this clause by encouraging commercial, tourism, retail and service industries in the township.

90. Clause 18 Transport, promotes the creation of an integrated, sustainable and safe transport system. Clause 18.01-2R supports improved transit and access within Geelong and the wider region. Clause 18.02-1S encourages walking and cycling opportunities be provided in residential areas. Amendment C87gpla supports this policy.

91. Clause 19 Infrastructure, seeks to ensure social and physical infrastructure is provided in an efficient, equitable, accessible and timely manner. Specific objectives and strategies of Amendment C87gpla support this policy by ensuring the provision of infrastructure and services in a logical sequence which aligns with development.

92. Clause 19.02-6S Open space, seeks to establish, manage and improve open space that meets the needs of the community. Amendment C87gpla requires links to public open space to be provided along the Leigh River with a linear pedestrian access to connect with existing pedestrian access along the river and into the town centre as rezoning’s and subdivisions occur.

93. Clause 19.02-2S requires consideration of demographic trends, existing and future demand requirements and the integration of facilities in planning for the location of

education and early childhood facilities. This policy has been considered and is supported by Amendment C87gpla.

94. Clause 19.03 Development Infrastructure, seeks to ensure integrated water management, gas, sewer, power, telecommunications and infrastructure will be advocated for to ensure future demands of the community are captured. A clear objective of Amendment C87gpla is to ensure provision of infrastructure and services are provided.

Regional Policy

95. The G21 Regional Growth Plan manages growth and land use pressure to 2050 in the G21 region. The Amendment supports and implements regional policy on Clause 11.01-1R-4G21. Clause 11.01-R outlines strategies for settlement in the Geelong G21 region. Inverleigh is identified as a ‘settlement’ on the G21 Regional Growth Plan. Strategies include: • Providing for settlement breaks between towns to maintain their unique identities. • Require a settlement boundary for all towns. • Protect critical agricultural land by directing growth to towns.

Local Policy

96. The Amendment supports and implements a range of policies from the Local Planning Policy Framework.

97. At Clause 21.02-1, Inverleigh is described as a small township which performs an important living, retail, service and community role to residents and the rural community. The policy acknowledges that in the south east of the shire, urban type development is focused around townships and that residential development is supported within the boundaries of townships. The policy goes on to acknowledge that better management of urban development in township areas affected by flooding, salinity or wildfire is required.

98. The policy states that “Future use and development of urban centres and small towns will largely centre on the traditional character and form of these towns. The maintenance of a clear distinction between urban and rural areas is essential to the continued agriculture and efficient township development and maximise the use of infrastructure”.

99. Clause 21.02-2 Townships provides a Township Hierarchy Framework at Table 1 which identifies Inverleigh as a district commercial and retail centre with commercial and retail needs to service the surrounding area. Amendment C87gpla is consistent with and facilitates Clause 21.02-2 Townships.

100. Amendment C87gpla is consistent with and facilitates Clause 21.02-3 Rural areas.

101. Clause 21.03 Environment and Natural Resources states the environment is a key factor influencing the economy, lifestyle and recreational choices in the Shire. Amendment C87gpla is consistent with and facilitates the objectives and strategies of Clause 21.03 with particular regard to biodiversity, flooding, bushfire, catchment management and waterways.

102. Clause 21.04 Built Environment and Heritage includes policy on urban design and heritage. Amendment C87gpla is consistent with the urban design objectives.

103. In Clause 21.04-2 public and private heritage areas are to be protected, maintained and enhanced.

104. Clause 21.05 Economic Development contains objectives and strategies specific to agriculture, commercial, industry and tourism. Under Clause 21.05 Agriculture, Amendment C87gpla supports “Objective 1: To ensure agricultural land is protected and used as an economically valuable resource” with objectives and strategies to avoid sensitive uses near agricultural operations where there may be conflict.

105. Under Clause 21.05-2 Commercial, the policy states that Inverleigh performs important local shopping and business roles. Objective 1 seeks “To consolidate commercial development in Townships by applying the Township Zone to facilitate appropriate commercial development in small townships”. Amendment C87gpla supports this policy and objective and encourages commercial, retail and tourism activity in the town centre with linear infill.

106. In Clause 21.05-3 Industry, Objective 2 seeks to encourage the development of value- adding industries within the Shire and servicing of industry by local enterprises. Amendment C87gpla supports the establishment of local service and rural based industry.

107. The objectives of Clause 21.06 Transport and Infrastructure seek to encourage the development and use of sustainable forms of transport by “supporting safe and attractive spaces and networks for walking and cycling”. Amendment C87gpla provides for new improved connections and relationship within the town and to the wider region with path networks to the town centre and between facilities within the town.

108. Relevant Local Planning Policies include:

• Clause 22.09 Low Density Residential Subdivision Policy which seeks to ensure the elements of land capability and character are addressed when considering subdivision applications. Objectives of this clause include ensuring that lots created in the LDRZ are of sufficient size to capably treat wastewater within property boundaries and to maintain an open and spacious character. The retention of existing vegetation is also encouraged. This policy is relevant to Amendment C87gpla as it provides clear guidance for managing proposed changes to minimum lot sizes specified in the Low Density Residential Zone Schedule 1.

• Clause 22.11 Floodplain Management applies to all land affected by the Floodway Overlay (FO) or the Land Subject to Inundation Overlay (LSIO). The Inverleigh Structure Plan, Amendment C87gpla and its associated documentation has included assessment of the existing flood behavior in Inverleigh and incorporates the findings of the recently conducted Inverleigh Flood Study, 2018.

• Clause 22.12 Heritage applies to planning applications where the Heritage Overlay applies. Amendment C87gpla is consistent with the provisions of Clause 22.12.

Environmental Effects

109. The Structure Plan defines a settlement boundary consistent with that of the 2005 Structure Plan. The settlement boundary will reduce residential sprawl and protect surrounding natural and rural environments. Amendment C87gpla seeks to integrate relevant environmental, social as well as economic factors in the interests of net community benefit and sustainable development.

110. Inverleigh is susceptible to flooding and the Land Subject to Inundation and Flood Overlays apply to areas in the town designated flood prone. The flood information has recently been updated as a consequence of the Inverleigh Flood Study 2018 and Amendment C80 which has been incorporated into the Inverleigh Structure Plan 2019.

111. A 60 metre wide Bio-link connecting the Inverleigh Flora Reserve with the Leigh River environs is identified through the greenfield site on Common Road to provide a habitat link. Additional green links and walking tracks are also identified through new residential areas connecting environmental assets and pedestrian/ cycle networks into the town centre.

Social and Economic Effects

112. New community facilities are directed to the core township where infill or re-use of existing buildings is encouraged. Additional passive open space is to be provided along

the Leigh River as part of rezoning for residential development of greenfield sites along the Leigh River. Walking, cycling and horse riding trails are also identified and required to connect new residential areas with the core township and river environs.

113. An extension of the Inverleigh Recreation Reserve is identified directly west of the existing facility to provide for additional infrastructure which may be required in the future, including a soccer pitch. New tennis courts should also be co-located within the Inverleigh Recreation Reserve if and when the opportunity arises.

114. No additional land is proposed to be rezoned for commercial uses as the Structure Plan encourages infill and re-use of existing buildings for future commercial within the town centre focused along the main street.

115. It is not necessary to designate areas for industrial use as rural based industry can be considered within the Farming Zone, and service industry can be considered within the Township Zone.

Ministerial Directions

116. The Amendment is consistent with the Ministerial Direction on the Form and Content of Planning Schemes under section 7(5) of the Planning and Environment Act 1987. The Amendment is also consistent with Ministerial Direction 15 - The Planning Scheme Amendment Process and Ministerial Direction 11 Strategic Assessment of Amendments.

117. The amendment considers the Ministerial Direction 1 Potentially Contaminated Land. When Council considers a request to rezone land in Inverleigh, Council will consider if contamination is an issue through the planning scheme and amendment process.

Inverleigh Framework Plan

118. The Amendment proposes a revised Inverleigh Framework Plan at Clause 21.07-5 that, in particular, identifies growth areas. Purposefully, the footprint of the Inverleigh

Framework Plan is not proposed to change from the ISP 2005. Low Density Residential Zones in the new framework plan will default to the State defined minimum lot size of 4000 square metres, rather than the 1.0 hectare minimum lot size required by the current structure plan. This supports and implements relevant aspects of state, regional and local policy. The Inverleigh Framework Plan is shown below.

Figure 13: Inverleigh Framework Plan

PANEL DIRECTIONS

Alignment of population and housing growth between the Inverleigh Structure Plan and the G21 Regional Growth Plan and other any other similar documents

119. The G21 Regional Growth Plan is a joint project between the five G21 councils (Colac Otway, Golden Plains, Surf Coast, Queenscliffe and Greater Geelong) and State Government. The Geelong G21 Regional Growth Plan is included within Clause 11.01- 1R of the Golden Plains Planning Scheme and identifies planned growth areas around Inverleigh.

120. The G21 Regional Growth Plan Background Report, August 2012 (Background Report) provides a summary of the background material supporting the G21 Regional Growth Plan, April 2013

121. According to the Background Report, the G21 region had a population of 294,348 in 2012 and was growing at a yearly rate of about 1.6%. The G21 Geelong Region Plan – A sustainable growth Strategy (2007) identified a potential growth in the region’s population to 500,000 people over the next 40 years. The Growth Plan was prepared to manage growth and land use pressures associated with this forecast.

122. Key findings of the Background Report, on the matter of Population included: • The G21 Region will continue to play an important role in accommodating Victoria’s population growth. The majority of this growth will be in the City of Greater Geelong. • The region is growing at a faster rate than that of regional Victoria. By 2026 the City of Greater Geelong can expect a population increase in the order of 31%.Golden Plains of 43%. • The region attracts significant numbers of people from metropolitan Melbourne and regional Victoria. Net migration will be a key driver of population growth.

123. Key findings of the Background Report on the matter of Housing, which are relevant to Inverleigh included: • Rural residential is a popular form of housing for lifestyle choice. This housing supply is located on the edges of urban areas in rural towns. • Need to identify ways to increase the average housing density beyond 15 lots per hectare to achieve greater efficiency and utilisation of existing services, provision of additional services such as public transport and accommodate growth.

• Providing future housing needs solely within greenfield-urban expansion areas is not suitable over the next 40 years and will have significant negative impacts, including the viability of higher density housing projects. • Rural residential land plays a role in the choice of housing. However the provision of additional rural living zoned land beyond existing strategically identified nodes should be generally discouraged. • Ensuring new development provides a range of diversity in housing stock to meet the changing requirements of the population. • Ensuring new housing can be provided in a way which is cost effective, sustainable, well designed and livable. • Ensuring community and physical infrastructure can be well planned and delivered with growth. • Ensuring new housing provision retains or contributed to important local character elements and livability of the region.

124. As provided in the Background Report, the G21 Councils had already planned for the region to grow to over 450,000 people.

125. Specifically, Figure 3.4 on page 35 of the Background Report illustrates the ‘identified planned growth’ at Inverleigh. This corresponds to the potential growth areas identified in the Inverleigh Structure Plan 2005 and the Inverleigh Structure Plan 2019, which propose no expansion on these growth areas. See Figure 12 below.

Figure 14: Identified Planned Growth, as provided in Figure 3.4 of the G21 Regional Growth Plan Background Report, August 2012.

126. The G21 Regional Growth Plan does not prescribe a particular density for growth areas of Inverleigh.

127. Planned population growth figures identified in Table 3.1 – Greenfield and Infill Land Supply on page 34 of the Background Report identify a planned population growth of 1,521 persons for Inverleigh by 2032 (over 20 years). This equates to an average increase of 76 persons per year. See Figure 15 below:

Figure 15: Greenfield and Infill Land Supply, as provided in Table 3.1 of the G21 Regional Growth Plan Background Report, August 2012.

128. The figures are generally consistent with the Inverleigh Structure Plan 2018 which projects an additional 1,177 persons by 2033 (over 15 years). This equates to 78.5 persons per year and is based on an average annual population growth rate for Inverleigh at 4.36%.

129. These projections sit within the broader context of the official State Government projections by DELWP presented in Victoria in Future 2019. Where Victoria is

projected to grow from 6.5 million people in 2018, to 8.7 million in 2036 and 11.2 million by 2056 (Victoria in Future 2019, Official State government projection DELWP).

130. The G21 Region (Greater Geelong (C), Golden Plains (S), Surf Coast (S), Colac Otway (S), Queenscliffe (B) has a population 332,070 in 2018 with projected growth to 464, 260 by 2036. The G21 Regional Growth Plan’s framework provides a planned response for a region of 500,000 people by 2050. The estimated number of new houses to meet the projected population of the G21 region is 90,000.

131. Golden Plains Shire is also projected to grow, from 23, 120 in 2018 to 33,070 in 2036 representing an additional 9,950 people. With a growth rate of 2.7% Golden Plains Shire is one of the fastest growing regional local government areas (equal 4th) over this timeframe (Victoria in Future, 2019).

132. Within Golden Plains Shire, Bannockburn is the main service centre, with a further 16 townships and 56 communities. Through to 2036 the largest net population growth is in Bannockburn (+4,884), and the Central East (+2,461) which includes towns in the Southern part of the Shire – Inverleigh, Teesdale and Lethbridge. There is also growth in the North West (+1,632). The highest growth rates are in Bannockburn (3.4%), South East (2.4%) and Central East (1.8%) (i.d Consulting, November 2017). For the towns identified for planned growth under the G21 Regional Growth Plan, in the South of the Shire, the average annual growth rates 2011-2016 were Bannockburn (7.32%), Inverleigh (4.36%), Teesdale (2.39%) and Lethbridge (1.39%) (ABS, Census 2011 & 2016).

Figure 16: Population forecast summary across Golden Plains Shire, .id Consulting, November 2017.

Farming Zone within the Settlement Boundary 133. The use of the Farming Zone within the Settlement Boundary of Inverleigh is an historical planning decision from the 2005 Inverleigh Structure Plan and the plans prior. The zoning decision has been reaffirmed in the Inverleigh Structure Plan 2019 both within a municipal and local context.

134. In a municipal context, Golden Plains Shire has recently completed the Northern Settlement Strategy (Planning Scheme Amendment C85gpla). The study included a comprehensive Land Demand and Supply Assessment, which found there were 1, 221 vacant residential lots distributed across the northern part of the Shire. This figure represents a vacancy rate of 40%, the majority of which is zoned Rural Living.

135. As part of preparing this Strategy, Council commissioned a Land Use Economic Modelling Study by HillPDA Consulting, 2016 to help inform the study. The Study found that infill lots at 1,000sqm represent the lowest cost settlement scenario when considering annual maintenance of roads and drains. . The study also found a correlation between maintenance costs and density –the lower the density the higher the maintenance costs per lot. In summary, the Study found that large dispersed lots and residential development in new areas bear significant expense due to the cost of providing infrastructure.

136. Consideration of appropriate lot sizes for rural residential purposes has been made within the context of the findings of the HillPDA 2016 Land Use Economic Modelling study.

137. In addition, the selection of appropriate zones from the suite available in the State Planning Provisions is made within the context of the overall supply of particular zones across the Shire. The existing (over)supply of Rural Living Zoned land within the Shire, is a contributing consideration in the selection of appropriate zones for residential purposes.

138. In the case of the Future Investigation Area, the Farming Zone serves as a ‘holding zone’. The intention is to provide scope for a range of proposals which may be

presented to Council, dependent on the particular characteristics, constraints of the land and market drivers. This could change across the landscape of the Future Investigation Area, for example the area south of the railway could be zoned differently to the area north of the railway line.

139. There is also the long term potential for the area to be serviced by reticulated sewerage in which case, the area presents as an attractive and logical extension of the existing township between the Hamilton Highway and the Railway line. The area provides good accessibility to the township and Hamilton Highway and is conveniently located to the recreation reserve. However, until warranted the most suitable zone is Farming Zone because it prevents further fragmentation of the land, compromising the efficiency of subdivision into residential lots in the future.

140. Other areas within the Farming Zone but not identified for growth within the Settlement Boundary are generally Flood Prone. Development in the floodway and floodplain is discouraged and the Farming Zone provides the appropriate controls to constrain development of these areas. The recently completed Inverleigh Flood Study 2018 made recommendations to update the flood related planning overlays to introduce new Land Subject to Inundation Overlay and Flood Overlay mapping into the Planning scheme. This has been implemented by Amendment C88gpla – Inverleigh Flood Study.

Low Density Residential Zone Schedule 1 – Tracked Change version and Clean version

141. There is a discrepancy between the Tracked Change version of the Low Density Residential Zone – Schedule 1 and the ‘clean version’ which resulted from technical difficulties uploading the amendment documents into the Department’s new Keystone Authoring system. The correct version is the ‘clean version’ included within the Amendment documentation.142.To clarify, Table 2.0 of the Low Density Residential Zone Schedule 1, showing Outbuildings, is to remain. The Table 1.0 Subdivision Requirements of the Low Density Residential Zone Schedule 1 also remains, however the text within the column specifying the minimum subdivision area is proposed to read ‘none specified’ as per Amendment C87gpla.

Potential Lot Yield

143. The Panel Directions at Item 1(h) request a map showing the potential lot yield of each of the proposed low density residential growth areas, the future investigation area and the recently zoned land on Hopes Plains Road at densities of 0.4 hectare as proposed through the Amendment. The requested map is provided below at Figure 17.

Figure 17: Potential Lot Yield, at a minimum lot size of 0.4 ha applied to proposed LDRZ areas, including the recently rezoned land at Hopes Plains Road and Common Road (Planning Permit P19-008) as well as the Future Investigation Area.

144. The Panel Directions at Item 1(i) request a map showing the potential lot yield of the proposed low density residential growth areas, the future investigation area and the recently zoned land on Hopes Plains Road at densities consistent with existing policy expressed in Figure 21.07—5A Inverleigh Structure Plan. The requested map is provided below at Figure 18.

Figure 18: Potential Lot Yield, consistent with existing policy expressed in Figure 21.07-5A Inverleigh Structure Plan, for proposed LDRZ areas, including the recently rezoned land at Hopes Plains Road and Common Road (Planning Permit P19-008) as well as the Future Investigation Area.

SUMMARY OF MAIN ISSUES RASIED IN SUBMISSIONS

145. A total of 92 submissions were received as part of the public exhibition process.

146. Issues raised within submissions were grouped under the following themes (within the left hand column of the Table below) in the Officer Report for Planning Scheme Amendment C87gpla presented at the Council Meeting on 26th November 2019. For the purposes of the Panel Hearing, the issues raised within submissions have been

grouped under the following themes listed in the right hand column of the table below.

Themes from submissions in report to Council Themes from submissions in Panel report • Bushfire risk Supply and Demand • Strategic Bushfire Risk • Population Assessment • Land supply • Provision of Education Facilities • Town Boundary • Retain Town Boundary • Lot size • The Inverleigh Flora and Fauna • Character Reserve • Sequencing • Supporting agricultural businesses • Risk of unsewered lots Bushfire Risk • Sustainable Development • Diversity of lot sizes and Country Environmental Issues Town/ Village Character • Inverleigh Flora Reserve • Governance/ loss of faith in • Risk to Flora and Fauna Golden Plains Shire • Bio-link • Water supply and pressure • Impacts on waterways • Stormwater management • Climate Change • Transport Infrastructure • Potential Growth Area 3 Infrastructure • Developer Contributions • Sewerage • Infrastructure: reticulated • Water sewerage, underground drainage • Local Roads and recycled water • Twin Bridges • Other matters • Hamilton Highway • Consultation • Bicycle network • Anomalies and corrections to the • Footpaths Structure Plan and Framework • Developer Contributions Plan. • Public Transport

Community Infrastructure • Educational facilities • Recreational facilities

Impacts on other land uses • Rural interface • Existing commercial and rural activities

Future Investigation Area

Government Agency Submissions

Aboriginal Cultural Heritage

Governance

Land use and Zoning Requests

Anomalies and Corrections.

PROCESS TO CONSIDER CHANGES TO THE STRUCTURE PLAN AND FRAMEWORK PLAN

147. Various changes are proposed to the Inverleigh Structure Plan 2019 document, the Inverleigh Framework Plan 2018, the amendment document at Clause 21.07-5 and Development Plan Overlay 9 at Clause 43.04 Development Plan Overlay (DPO). These are outlined in Table xx below.

148. Many of these changes are recommended in response to submissions made on the Amendment. Other minor changes have been identified by Council officers to correct errors or for clarity.

149. The changes recommended in the table below were foreshadowed in Attachment 13 of the report to Council’s Meeting of 26th November 2019.

150. The following table identifies suggested changes to Amendment C87gpla in response to submissions – suggested by officers.

Page Suggested changes to the Inverleigh Submission Structure Plan 2019 document 7 Insert 15km south west of Bannockburn Officer correction 30, 31, Remove all references to the Streetscape Submission 32 32,42,49 Masterplan 38 In paragraph 8, second sentence: change Submission 15 word ‘average’ to ‘minimum’ 43 Remove the sentence “There is potential to Submission 65, 87 use the Public Hall on High Street if capacity for services is exceeded at the Kindergarten site”. 60 Include the requirement for a traffic impact Submission 59 assessment as a Developer Responsibility 62 Reword the first Developer Responsibility as Submission 37 follows: The contribution towards the upgrade or replacement of the Twin Bridges to a 15 tonne capacity to support access by emergency vehicles, must be resolved prior to the land being considered for rezoning. References to Inverleigh Flora and Fauna Submission 58 Reserve be changed to the Gazetted name of ‘Inverleigh Flora Reserve’ In Section 7 include a note that Potential Submission 37 Growth Area numbers do not indicate staging.

58 In Section 7, the requirement for the Submission 83 preparation of a management plan for the Leigh River be included as a Council action with the table on page 58 59, 60, In Section 7, identify the extent of the Submission 59, 79, 81 61, 63, Inverleigh Flora Reserve to include the area 64 and between the Inverleigh-Teesdale Road and 66 Bakers Lane to the top of the image. 61-66 In Section 7, clarify and strengthen bushfire Resultant for expert advice mitigation measures as recommended by for Golden Plains Shire Expert Evidence Report for Amendment C87 from Philip Walton prepared by Philip Walton, March 2020 * regarding Bushfire risk. 29, 61- In Section 5.3 and Section 7, clarify Barwon Resultant from recent 66 Water’s position: that an alternative water discussions with Barwon supply is provided to properties within a Water. Bushfire Management Overlay as required by Clause 53.02 that is sufficient to support firefighting operations should they be needed. The alternative water supply will be independent of the Barwon Water network and will consist of water tanks on individual properties and a number of strategically placed larger tanks on public land. The alternative supply is required as Barwon Water, like all other Victorian Water Authorities, which operate under the Water Act, is not responsible for providing an adequate water supply for firefighting in its mains. No separate fire flow component is designed into Barwon Water's water mains.” *

Suggested changes to the Inverleigh Framework Plan 2018 Delete the proposed pedestrian access from Resultant from early Dawber Road to the Leigh River and replace discussions with it with a pedestrian access along the extent community members of Bourkes Road (eastern side). during Amendment preparation. Remove from Legend and from plan the Resultant from meeting identification of Formal Streetscape and held with community Informal Streetscape. members during the exhibition period. Rawson Road – incorrectly identified to the Submission 81 south of Mahers Road. Remove text ‘Rawsons Road’ south of the Settlement boundary where it extends south from Mahers Road. Railway Crossing at Newman Street does not Submission 79, 81 exist and should be removed. Use text on map to Identify Federation Submission 79, 81, 87 Bridge. Correct status of Cemetery Road/ Gallagher Submission 81 Road – Gallagher Road is depicted as an Unsealed Key Access Road. Savage Drive – remove small grey line jutting Resultant from meeting off Savage Drive as it does not exist. held with community members during the exhibition period. Identify the lookout around Savage Drive? Submission 81 Change name of The Common to Inverleigh Submission 58 Flora Reserve

Identify the extent of the Inverleigh Flora Submission 58, 79, 81 Reserve within the area between the Inverleigh-Teesdale Road and Bakers Lane. Include a notation that the exact location of Submission 37 green links, bridle paths, pedestrian access and Bio-Link are indicative (or subject to more detailed planning in consultation with DELWP). Suggested changes to Clause 21.07-5 At Strategy 1.1, amend to read: Response to submissions Support moderate residential growth 23, 25, 26, 27, 30, 33, 43m within the existing defined township 48, 48, 51, 61, 68, 69, 70, Settlement boundary consistent with 71, 72, 78, 80, 82 the Inverleigh Structure Plan 2019 in Figure 21.07-5A Inverleigh Structure Framework Plan.

At Strategy 2.4, amend to read: Response to submissions Locate and design development *AGRICULTURAL adjacent to the township boundary so that it does not impact on agricultural land use.

At Strategy 3.1, amend to read: Submission 58 Protect the natural landscape and its environmental qualities, including the Inverleigh Flora Reserve, the Barwon and Leigh rivers and vegetation as fundamental elements of Inverleigh.

Suggested changes to Development Plan Overlay 9 at Clause 43.04 Development Plan Overlay (DPO) Redrafting of Clause 43.04 Development Plan Overlay Schedule 9 in accordance with Submission 58 Panel recommendations.

* These suggested changes are subsequent to the foreshadowed changes in Attachment 13 of the report to Council’s Meeting of 26th November 2019. They are suggested by officers based on recent expert advice and discussions with relevant authorities.