BALLARAT PLANNING SCHEME AMENDMENT C58 HERITAGE AMENDMENT PANEL REPORT JANUARY 2004 BALLARAT PLANNING SCHEME AMENDMENT C58 HERITAGE AMENDMENT PANEL REPORT HELEN GIBSON, Chair MAGGIE BARON, Member ELIZABETH JACKA, Member JANUARY 2004 BALLARAT PLANNING SCHEME AMENDMENT C58 PANEL REPORT (JANUARY 2004) 1 TABLE OF CONTENTS 1. OVERVIEW............................................................................................................................................ 4 2. THE PANEL PROCESS........................................................................................................................ 9 2.1 THE PANEL .............................................................................................................................................. 9 2.2 HEARINGS AND INSPECTIONS................................................................................................................... 9 2.3 SUBMISSIONS ......................................................................................................................................... 10 3. WHAT IS PROPOSED? ...................................................................................................................... 11 3.1 THE AREA AFFECTED BY THE AMENDMENT .......................................................................................... 11 3.2 THE AMENDMENT.................................................................................................................................. 11 3.3 THE NATURE OF THE AMENDMENT........................................................................................................ 16 4. ISSUES .................................................................................................................................................. 19 4.1 NATURE OF SUBMISSIONS ...................................................................................................................... 19 4.2 ISSUES ASSOCIATED WITH THE APPLICATION OF HERITAGE CONTROLS ................................................ 19 4.3 PANEL’S APPROACH .............................................................................................................................. 21 5. STRATEGIC CONTEXT .................................................................................................................... 24 5.1 PLANNING POLICY AFFECTING THE AMENDMENT ................................................................................. 24 5.2 METROPOLITAN STRATEGY – MELBOURNE 2030 .................................................................................. 24 5.3 STATE PLANNING POLICY FRAMEWORK (SPPF).................................................................................... 25 5.4 BALLARAT PLANNING SCHEME LOCAL PLANNING POLICY FRAMEWORK (LPPF) ................................. 26 5.5 STRATEGIES ........................................................................................................................................... 28 5.6 PLANNING GUIDELINES.......................................................................................................................... 29 5.7 HERITAGE STUDIES................................................................................................................................32 6. RECENT PANEL REPORTS ON HERITAGE................................................................................ 35 6.1 INTRODUCTION ...................................................................................................................................... 35 6.2 REPORT ON TRENDS AND ISSUES EMERGING FROM CONSIDERATION OF THE FIRST FIVE NEW FORMAT PLANNING SCHEMES (1988) ........................................................................ 35 6.3 FINAL REPORT ON THE NEW FORMAT PLANNING SCHEMES (1999) ....................................................... 36 6.4 FINAL REPORT ON THE GOOD DESIGN GUIDE AND VICCODE 1 (2000)................................................... 36 6.5 MONASH L51 (2000) ............................................................................................................................. 37 6.6 STONNINGTON L47(D) (2000)............................................................................................................... 38 6.7 STONNINGTON C12 PART 2 (2002)........................................................................................................ 41 6.8 STONNINGTON C5 & C6 PART 2 (2003) ................................................................................................ 42 6.9 YARRA RANGES C16 PART 2 (2003) ..................................................................................................... 45 6.10 HOBSONS BAY C17 (2003) .................................................................................................................... 47 7. BALANCING COMPETING OBJECTIVES.................................................................................... 51 7.1 HERITAGE OVERLAY.............................................................................................................................. 51 7.2 HERITAGE CONSERVATION POLICIES..................................................................................................... 52 8. APPLYING THE HERITAGE OVERLAY....................................................................................... 55 8.1 APPLYING THE HERITAGE OVERLAY IN BALLARAT ............................................................................... 55 8.2 BALLARAT HERITAGE STUDY STAGE 2.................................................................................................. 55 8.3 DELINEATING HERITAGE AREAS............................................................................................................ 58 8.4 STATEMENTS OF SIGNIFICANCE ............................................................................................................. 59 9. MANAGING HERITAGE PLACES .................................................................................................. 61 9.1 WAYS OF MANAGING HERITAGE PLACES .............................................................................................. 61 9.2 LOCAL PLANNING POLICIES................................................................................................................... 62 9.3 GUIDELINES ........................................................................................................................................... 68 9.4 SCHEDULE TO HERITAGE OVERLAY ...................................................................................................... 69 BALLARAT PLANNING SCHEME AMENDMENT C58 PANEL REPORT (JANUARY 2004) 2 9.5 INCORPORATED PLAN ............................................................................................................................ 71 9.6 EXTERNAL PAINT CONTROLS................................................................................................................. 72 9.7 DEMOLITION OF ‘NON-SIGNIFICANT’ PLACES ....................................................................................... 74 10. HERITAGE CONSERVATION POLICY......................................................................................... 76 10.1 HERITAGE CONSERVATION POLICIES IN AMENDMENT C58 ................................................................... 76 10.2 STRATEGIC BASIS FOR HERITAGE CONSERVATION POLICY ................................................................... 78 10.3 IS A LOCAL PLANNING POLICY NECESSARY?......................................................................................... 80 10.4 NEW DEVELOPMENT AND ALTERATIONS ............................................................................................... 83 10.5 LANGUAGE, FORM AND STRUCTURE...................................................................................................... 90 10.6 SIGNIFICANT AND NON-SIGNIFICANT BUILDINGS .................................................................................. 93 10.7 DESIGNATING NON-SIGNIFICANT BUILDINGS ...................................................................................... 101 10.8 CRITERIA FOR DETERMINING SIGNIFICANCE........................................................................................ 104 10.9 SUMMARY OF RECOMMENDATIONS REGARDING THE HERITAGE CONSERVATION POLICY FOR BALLARAT ........................................................................... 111 11. HERITAGE PLANNING CONTROLS IN VICTORIA................................................................. 115 11.1 HISTORY OF HERITAGE PROTECTION IN VICTORIA .............................................................................. 115 11.2 OPERATION OF THE HERITAGE OVERLAY ............................................................................................ 117 11.3 WHAT IS ‘HERITAGE SIGNIFICANCE’?.................................................................................................. 118 11.4 SHORTCOMINGS WITH THE HERITAGE OVERLAY AND ITS MANAGEMENT............................................ 123 11.5 HERITAGE PLANNING POLICIES ........................................................................................................... 129 11.6 OPTIONS FOR REFORM ......................................................................................................................... 130 11.7 CRITERIA FOR ESTABLISHING LOCAL SIGNIFICANCE ........................................................................... 133 12. CONSIDERATION OF SUBMISSIONS