WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT MAY 2006 WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT JENNIFER A MOLES, CHAIR ELIZABETH BENSZ, MEMBER MAY 2006 WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 1 TABLE OF CONTENTS SUMMARY .......................................................................................................................................... 2 1. WHAT IS PROPOSED? .......................................................................................................... 6 1.1 WHAT LAND IS AFFECTED? ......................................................................................... 6 1.2 STRATEGIC NATURE OF THE AMENDMENT............................................................ 6 1.3 DETAILS OF THE AMENDMENT .................................................................................. 6 1.4 EXHIBITION OF THE AMENDMENT.......................................................................... 12 1.5 PLANNING AUTHORITY CONSIDERATION OF SUBMISSIONS............................ 12 1.6 APPOINTMENT OF PANEL AND HEARINGS............................................................ 13 2. STRATEGIC CONTEXT ...................................................................................................... 14 2.1 STATE PLANNING POLICY FRAMEWORK (SPPF) .................................................. 14 2.1.1 The MSS Review......................................................................................................... 15 2.1.2 Other Wcc Strategies and Policies.............................................................................. 16 2.1.3 Other Agency Reports and Strategies ......................................................................... 21 2.1.4 Key Changes to Local Scheme Content ...................................................................... 22 2.1.5 Strategic Studies Proceeding Separately .................................................................... 23 2.1.6 Consequential Zoning and Overlay Changes ............................................................. 23 2.1.7 Panel Comment........................................................................................................... 23 3. ISSUES..................................................................................................................................... 25 3.1 NATURE OF SUBMISSIONS ......................................................................................... 25 3.2 GROUPS OF ISSUES IDENTIFIED BY THE PANEL .................................................. 26 3.3 PANEL ASSESSMENT OF THE ISSUES ...................................................................... 26 3.3.1 Future Industrial Development att Allansford............................................................ 27 3.3.2 Future Development of Gateway Plaza, Deakin University and the Eastern Entry to the City............................................................................... 30 3.3.3 Affordability and Availability of Housing................................................................... 33 3.3.4 The Amount and Location of Rural Residential Land................................................. 38 3.3.5 Staginga and Leap-Frogging of Particular Residential/Commercial Developments ...................................................................... 40 3.3.6 Drafting Issues............................................................................................................ 43 3.3.7 Other Issues ................................................................................................................ 44 4. RECOMMENDATIONS........................................................................................................ 51 APPENDICES A. THE PANEL PROCESS ........................................................................................................ 55 THE PANEL .................................................................................................................................. 55 HEARINGS, DIRECTIONS AND INSPECTIONS ...................................................................... 55 SUBMISSIONS.............................................................................................................................. 56 B. STRATEGIC ASSESSMENT GUIDELINES...................................................................... 60 C. COUNCIL RESPONSE TO DETAILED SUBMISSIONS................................................. 63 D. ANNOTATED MSS BEFORE THE PANEL....................................................................... 87 WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 2 SUMMARY The key changes proposed to the Warrnambool Planning Scheme (WPS) Local Planning Policy Framework (LPPF) proposed via Amendment C43 are as follows: A new re-structured Municipal Strategic Statement (MSS) is proposed at Clause 21 to reflect the recommendations of the Three Year MSS Review and the adopted strategic work. The MSS would provide the broad strategic framework for the local policies and controls. Clause 21.01 provides a profile of the City of Warrnambool and identifies the four key strategic land use planning themes that need to be addressed in the municipality. These four themes are similar to those in the State Planning Policy Framework (SPPF) – Housing; Environment; Economic Development; and Infrastructure. Clause 21.02 identifies the key influences on land use planning in Warrnambool. Clause 21.03 contains the vision from the 2005 Council Plan and a new Strategic Framework Plan for Warrnambool. Clause 21.04 provides an introduction to the objectives, strategies and implementation provided in the subsequent clauses. Clause 21.05 describes the Planning Authority’s strategic directions for Housing, including Outline Plans for the North East Corridor, the Coastal/Hopkins River area, Dennington North, North of Merri River, Eastern Activity Precinct and Allansford. Clause 21.06 describes the strategic directions for the Environment, under the themes of Sustainability, Biodiversity and Native Vegetation, Waterways, Flooding, Coastal Landscape, Steep land, and Heritage. Clause 21.07 describes the strategic directions for Economic Development, under the themes of Agriculture, Industry, Commerce, Tourism and Gaming. Clause 21.08 describes the strategic directions for Infrastructure, under the themes of Water, Sewerage & Drainage, Incompatible Land Uses and Community Services. Clause 21.09 describes the manner in which the Planning Authority will monitor and review the performance of the WPS and its linkages with the Council Plan. Clause 21.10 lists a number of reference documents that have influenced the strategies contained within the MSS. WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 3 Changes are also proposed to the Clause 22 local policy component of the WPS. A considerable body of local policy has been relocated to the MSS, a small number of policies have been abandoned due to lack of utility or effectiveness and the remaining local policies have been regrouped under headings consistent with the SPPF headings. The Panel was advised that there is to be a subsequent amendment which will revise zonings and overlays to further give effect to the MSS review. This is to include converting many of the local policy statements into new overlay controls. Following exhibition of the proposed changes to the Warrnambool Planning Scheme, in response to a request by the Planning Authority, this Panel was appointed to provide advice on the submissions and the amendment. All 37 submissions received by the Planning Authority were referred to the Panel. The Panel conducted a public hearing in Warrnambool during which oral submissions were made by the Planning Authority, various public and private agencies and individuals. Expert evidence was called by the Planning Authority and one submitter. The Panel inspected various parts of the municipality to assist in its consideration of the issues raised. Following consideration of all matters put before the Panel, a number of conclusions and recommendations are made in this report as set out in summary below. RECOMMENDATIONS AND CONCLUSIONS Amendment C43 to the Warrnambool Planning Scheme Planning Scheme should be adopted subject to the following particular recommended changes and actions. PARTICULAR RECOMMENDATIONS Allansford • The Panel recommends that the Planning Authority proceeds urgently with the preparation of a structure plan for the industrial park at Allansford and the adjoining residential areas. The siting of any rail siding and associated acoustic barriers should be considered as a key component of the plan. • The Panel supports the emphasis in the Expressions of Interest document for preparation of the structure plan upon communication with the residents. • The Panel believes that this aim would be assisted by the establishment of a project steering committee which should include representatives of the local community. • Consideration should be given to the appropriate zoning of the land at the fringe of the Allansford township upon which the submitters reside. • The Panel also recommends that the required amenity buffers between industry and dwellings should be provided within the industrial land itself. If this arrangement requires more land than is has already been purchased, further land may be need to be obtained. WARRNAMBOOL PLANNING SCHEME AMENDMENT C43 PANEL REPORT: MAY 2006 Page 4 Eastern Entry • The Panel recommends that